Migratory Bird Permits; Possession and Educational Use, 57413-57426 [2010-23342]

Agencies

• Fish and Wildlife Service
• DEPARTMENT OF THE INTERIOR

[Federal Register Volume 75, Number 182 (Tuesday, September 21, 2010)]
[Proposed Rules]
[Pages 57413-57426]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: 2010-23342]


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DEPARTMENT OF THE INTERIOR

Fish and Wildlife Service

50 CFR Parts 10, 13, 21, and 22

[FWS-R9-MB-2008-0103]
[91200-1231-9BPP]
RIN 1018-AI97


Migratory Bird Permits; Possession and Educational Use

AGENCY: Fish and Wildlife Service, Interior.

ACTION: Proposed rule.

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SUMMARY: The U.S. Fish and Wildlife Service (``we'' or ``the Service'') 
is proposing a permit regulation to authorize the possession and use of 
migratory birds in educational programs and exhibits. The proposed rule 
also would revise existing regulations authorizing public exhibition of 
eagles. In addition, it would remove the permit exemption for some 
public institutions for possession of live migratory birds and 
migratory bird specimens, and clarify that birds held under the 
exemption must be used for conservation education. For specimens such 
as feathers, parts, carcasses, nonviable eggs, and nests, the 
regulations would be updated and clarified to more accurately reflect 
the types of institutions that may hold specimens for public 
educational purposes. The regulations would allow exempt institutions 
to transfer migratory birds to individuals and entities authorized by 
permit to possess them. Sale and purchase by permittees and exempt 
institutions would be restricted to properly-marked, captive-bred 
birds.

DATES: Submit written comments on or before December 20, 2010, to the 
address below.

ADDRESSES: You may submit comments by one of the following methods:
     Federal eRulemaking Portal: https://www.regulations.gov. 
Follow the instructions for submitting comments.
     U. S. mail or hand-delivery: Public Comments Processing, 
Attn: RIN 1018-AI97; Division of Policy and Directives Management; U. 
S. Fish and Wildlife Service; 4401 North Fairfax Drive, Suite 222; 
Arlington, VA 22203-1610.
    We will post all comments on https://www.regulations.gov. This 
generally means that we will post any personal information you provide 
us (see the Public Comments section below for more information).

FOR FURTHER INFORMATION CONTACT: Eliza Savage, Division of Migratory 
Bird Management, U. S. Fish and Wildlife Service, 4401 North Fairfax 
Drive, Mailstop 4107, Arlington, VA 22203-1610; or 703-358-2329.

SUPPLEMENTARY INFORMATION:
Public Comments
    You may submit your comments and materials concerning this proposed 
rule by one of the methods listed in the ADDRESSES section. Please note 
that we may not consider comments we receive after the date specified 
in the DATES section in our final determination.
    Before including your address, phone number, e-mail address, or 
other personal identifying information in your comment, you should be 
aware that we will post your entire comment--including your personal 
identifying information--on https://www.regulations.gov. While you can 
ask us in your comment to withhold your personal identifying 
information from public review, we cannot guarantee that we will be 
able to do so.
    Comments and materials we receive, as well as supporting 
documentation we used in preparing this proposed rule, will be 
available for public inspection on https://www.regulations.gov, or by 
appointment, during normal business hours, at the U.S. Fish and 
Wildlife Service, Division of Migratory Bird Management, 4501 North 
Fairfax Drive, 4\th\ Floor, Arlington, VA 22203-1610; telephone 703-
358-2329.

Background

    The Migratory Bird Treaty Act (MBTA) (16 U.S.C. 703 et seq.) 
prohibits possession of any bird protected by treaties between the 
United States and Canada, Mexico, Japan, and Russia unless the 
possession is authorized under regulation and/or by permit. Birds 
protected by the MBTA are referred to as ``migratory birds.'' The 
Service regulates the use of migratory birds through regulations at 
parts 20 and 21 of title 50 of the Code of Federal Regulations (CFR). 
Unless exempt under regulations at 50 CFR 21.12, you must obtain a 
permit from the Service to possess a migratory bird for use in 
educational programs. Because there are currently no specific 
educational-use permit regulations, we authorize educational activities 
that involve migratory birds using Special Purpose permits issued under 
50 CFR 21.27, which provides for permits for activities not 
specifically authorized by an existing permit category. In the absence 
of specific regulations addressing educational activities using 
migratory birds, the terms and requirements governing this activity are 
currently set forth in a list of standard conditions issued with each 
permit.

[[Page 57414]]

    Through this rulemaking, we propose to establish educational-use 
permit regulations to hold live nonreleasable or captive-bred migratory 
birds and nonliving specimens thereof for use in teaching people about 
migratory bird conservation and ecology. The public input we receive in 
response to this proposed rule will help us develop final regulations 
that will provide consistency and clarity in the administration of 
permits for migratory bird educational activities nationwide, and 
ensure that migratory birds are used humanely and in a manner 
consistent with the protections afforded by the MBTA.
    We drafted this proposed regulation with the benefit of public 
comment received in response to an advance notice of proposed 
rulemaking published in the Federal Register on October 13, 2005 (70 FR 
59710). In that notice, we solicited public input on facilities 
standards, experience criteria, and commercialization, among other 
issues associated with use of migratory birds for educational purposes. 
We received more than 200 comments, most of which were quite detailed 
and substantive, and were integral to crafting this proposed 
regulation.
    The primary purpose of the proposed permit is to authorize 
conservation education programs. Each program would have to provide a 
message about migratory bird conservation, natural history, biology, or 
ecology. As one commenter suggested, the permit's purpose is to 
``instill in a person memorable information that benefits birds or the 
natural world.'' The message does not necessarily need to be spoken to 
be conveyed; creating an attitude can be as important as imparting 
information. As long as the program addresses conservation, natural 
history, biology, and/or ecology, it may also contain additional 
educational content on other topics such as Native American cultural 
heritage or falconry. The requirement to have a conservation message 
does not preclude presentations with migratory birds from being 
entertaining. As another commenter put it, ``laughter and amusement 
open pathways for receptive learning. The goal is to inspire.'' 
However, this permit would not allow use of a migratory bird in a 
presentation in which the bird is induced to perform tricks or imitate 
human or other behavior unnatural for the species.
    Under no circumstance would we authorize the use of migratory birds 
to endorse or promote any product or service, other than the 
conservation objectives of a sponsor, the permit holder, or the U.S. 
Fish and Wildlife Service. As long as this condition is met, migratory 
birds may be used in conservation education programs at commercial 
venues. We believe that commercial venues can provide opportunities to 
bring conservation messages to large numbers of people who may not 
otherwise be exposed to this type of educational program.
    The permit would require permittees to conduct a minimum of 12 
public educational programs per year that are open to the general 
public or presented at an accredited public or private school with the 
birds held under the permit. A facility such as a zoo, in which birds 
are displayed in permanent enclosures and not presented in 
demonstrations or programs, must be open to the general public at least 
400 hours per year. The requirement that displays or programs be open 
to the general public or presented in a formal educational setting is 
integral to the purpose of the permit, because migratory birds are a 
public resource, and because it is the Service's mission to further 
their conservation. We would issue educational permits only when the 
public would benefit by gaining a greater understanding of the wild 
nature and conservation status of migratory birds.
    Being open to the general public does not mean that presentations 
conducted under this permit must be free of charge. For migratory bird 
permits, we define ``open to the general public'' as ``available to the 
general public and not restricted to any individual or set of 
individuals, whether or not a fee is charged.'' Therefore, the required 
programs cannot be limited to specific audiences; all members of the 
public would have to be eligible to attend the programs. The exception 
would be classrooms in accredited schools (because most accredited 
schools are open to the public, even though specific classes may be 
closed to a wider audience). To illustrate what is meant by ``open to 
public,'' a wedding reception limited to guests who received a wedding 
invitation is not open to the general public, whereas, an educational 
program offered at a national park is. As another example, Disneyland 
is open to the general public because anyone who is willing to pay the 
admission fee may be admitted.
    Provided that the conservation education component is a prominent 
element within the presentation, the programs are open to the general 
public, no product is endorsed, and all the conditions for possessing 
birds under the permit are satisfied, this permit would be available to 
for-profit institutions.
    As long as the permittee satisfies the requirements for being open 
to the general public, he or she can also present programs for private 
or invitation-only gatherings, provided that the required conservation 
message is presented and all the other conditions of the permit are 
met.
    We recognize that the requirement that each bird be used in a 
minimum of 12 public educational programs per year could be hard on old 
or ailing birds. If it would no longer be humane to use a bird for 
educational programs, the educator could request an exception from 
their permit office from using that bird in the required 12 programs.
    We propose to use two publications as guidance for evaluating 
facilities and experience for the housing and care of migratory birds 
and eagles held under this permit. For raptors, we would use the 
housing recommendations of the University of Minnesota Raptor Center's 
Raptors in Captivity: Guidelines for Care and Management (2007). For 
other migratory birds, we would use the National Wildlife 
Rehabilitator's Association's Wildlife in Education: A Guide for the 
Care and Use of Program Animals (2004). The recommendations in the two 
publications would serve as guidance for the issuing office; we could 
authorize variation from the standards where doing so would be 
reasonable and necessary to accommodate a particular educator's 
circumstances, and would not adversely affect any bird held by the 
educator. The proposed rule contains a ``grandfather clause,'' which 
states, in part: ``If your facilities have already been approved by the 
Service on the basis of photographs and diagrams, and authorized under 
a Sec.  21.27 Special Purpose-Education permit or Sec.  22.21 Eagle 
Exhibition permit, then they are authorized under your new permit 
issued under this section, unless those facilities have materially 
diminished in size or quality from what was authorized when you last 
renewed your permit, or unless you wish to expand the authorizations 
granted by your permit (e.g., the number or types of birds you hold).''
    Similar to the provisions of the migratory bird rehabilitation 
regulations, this proposed rule would require subpermittees to be at 
least 18 years old. This requirement does not prevent a permittee from 
allowing younger persons to participate in the activities authorized by 
permit; a volunteer is not required to be a subpermittee if he or she 
is supervised by the permittee or a subpermittee, and this would apply 
to persons under 18 years of age.

[[Page 57415]]

    This rule would limit the sale and purchase of birds held under the 
permit to the following categories: (1) raptors bred under a Raptor 
Propagation permit and marked with a seamless metal band provided by 
the Service, (2) waterfowl bred under a Waterfowl Sale and Disposal 
permit and marked in accordance with 50 CFR 21.13, and (3) game birds 
bred under a Special Purpose Game Bird permit and marked in accordance 
with 50 CFR 21.13. Permittees would be authorized to sell and purchase 
such birds to and from one another and to and from holders of other 
types of permits that authorize purchase and sale of such birds. 
Transfer of other migratory birds held under the permit would be 
allowed by donation only. Permittees would not be authorized to breed 
birds held under the permit.
    The proposed rule contains guidance we would use to evaluate 
applicants' experience to determine what species they are qualified to 
hold. The table addresses only the more commonly-used raptors, as well 
as corvids, because those are the species for which we have some 
information on which to base our criteria, including recommendations 
from the publications noted above and from commenters responding to our 
2005 notice regarding this proposed rulemaking. In response to 
commenters, we placed the more commonly-used species into four 
experience categories, according to the skill and experience needed to 
handle them. Some species of migratory birds not listed in the table 
may be suitable for educational use, but we would need more information 
to assess their suitability and the experience needed to handle and 
care for them. Accordingly, we are specifically soliciting input from 
persons with some knowledge of and/or experience with the 30 MBTA-
protected raptor species not listed in the table, as well as other 
species of migratory birds, regarding temperament and other physical 
and behavioral traits that could affect their suitability for 
educational use.
    To clarify terms used in this rulemaking, we propose several new 
regulatory definitions that would apply to migratory bird permits. The 
terms we propose to define are ``nonreleasable bird,'' ``open to the 
general public,'' ``public institution,'' ``public museum,'' and 
``public zoological park.'' We also propose to amend the definition of 
``public'' in 50 CFR part 10.12 to remove its application to migratory 
bird and eagle permits, since we are clarifying how it applies to 
migratory bird permits through the above definitions and to eagle 
permits through definitions we propose under part 22 (see below).

Eagle Educational Use

    This proposed rule would also revise regulations governing 
possession and use of bald eagles (Haliaeetus leucocephalus) and golden 
eagles (Aquila chrysaetos) for educational purposes. Currently, 
regulations governing the use of eagles for exhibition purposes are at 
50 CFR 22.21. The existing eagle exhibition permit regulations are 
combined with eagle scientific permit regulations and addressed in the 
same section at 50 CFR 22.21. This proposed rule separates the two 
activities to create stand-alone eagle exhibition (educational-use) 
regulations.
    These proposed eagle educational-use regulations largely 
incorporate by reference the regulations proposed herein for possessing 
other MBTA-protected birds for educational purposes. They differ only 
in a few aspects. First, all live eagles held under the regulation 
would have to be nonreleasable (whereas permits for other migratory 
bird species would authorize possession of captive-bred, as well as 
nonreleasable, birds). Second, as mandated by the Bald and Golden Eagle 
Protection Act (Eagle Act) (16 U.S.C. 668 et seq.), only public 
museums, public scientific societies, and public zoological parks are 
allowed under the Eagle Act to obtain permits to exhibit eagles. The 
rule proposes regulatory definitions for ``public museum,'' ``public 
scientific society,'' and ``public zoological park'' to remove 
ambiguity about who may qualify to receive eagle educational use 
permits. The new definitions are intended to be as broad as possible 
within the intent of the Eagle Act so as not to unnecessarily restrict 
placement of eagles for educational use with otherwise qualified 
individuals and organizations. See our October 13, 2005, Federal 
Register notice at 70 FR 59712, for more discussion of this issue.
    Third, differences between the MBTA and the Eagle Act necessitate 
different requirements for international transport of eagle specimens 
than for other migratory bird specimens. The Eagle Act and implementing 
regulations at 50 CFR 22.12(a) prohibit permanent export or import of 
bald eagles. Thus, the proposed eagle regulations differ from the 
proposed migratory bird regulations because they incorporate existing 
regulations for exhibitions of eagle specimens that are taken out of 
and returned to the United States. Except for re-formatting and the 
addition of a three-year maximum permit duration, the eagle transport 
regulations would be unchanged.
    Fourth, under the proposed eagle educational-use regulations, 
permits would authorize possession of non-living eagle specimens only 
if they were lawfully acquired prior to March 30, 1994, with very 
limited exceptions. That is the date that the Service began 
implementing Director's Order 69, which requires Service employees to 
ensure that all eagle specimens are sent to the National Eagle 
Repository, the Service's distribution center for eagle parts and 
feathers for Native American religious use. Consequently, these 
regulations provide that we may permit transfer and possession only of 
specimens that were already lawfully possessed prior to that date, 
unless the specimen lacks ceremonial value due to poor condition or 
some other reason. As provided in Director's Order 69, the Regional 
Director may make exceptions for important resource needs.
    Finally, the eagle educational-use regulations, in keeping with 
Director's Order 69, would require all carcasses and feathers that are 
not needed for imping (feather replacement) purposes for other live 
eagles to be sent to the National Eagle Repository.
    Please note that although eagle scientific permit regulations are 
included in this proposed rulemaking, we are not making any revisions 
to those regulations at this time, except (1) as is necessary to 
separate the exhibition regulations from them (such as removing the 
phrases ``and exhibition'' and ``or exhibition'' throughout the 
regulation), and (2) changing the name of the permits from ``Scientific 
collecting purposes'' to ``Scientific purpose,'' since those permits do 
not always authorize collection of specimens from the wild. To remove 
the references to ``exhibition'' from Sec.  22.21, it was necessary to 
publish the text of the entire section, but we are not proposing any 
other revisions to it at this time.
    Adding the definitions of ``public museum,'' ``public scientific 
society,'' and ``public zoological park'' to the part 22 eagle 
regulations could affect scientific permitting by clarifying 
eligibility of applicants. However, the new definitions are not 
intended to change the provisions of the eagle scientific permit 
regulations; we propose them here simply to clarify existing provisions 
for all eagle permits.
    In separating the permit regulations for eagle exhibition from 
eagle scientific collecting, ``take'' of eagles would no longer be 
authorized under the exhibition regulations. This ``revision'' actually 
maintains the status quo: the only take of eagles that we have 
permitted under the existing eagle exhibition/scientific regulations 
was for

[[Page 57416]]

scientific collecting. The proposed regulations continue our policy of 
not issuing permits to take eagles from the wild for exhibition 
purposes.
    The current eagle exhibition/scientific permit regulations are 
silent as to whether eagles used under the permit must be 
nonreleasable. Nevertheless, in keeping with the Eagle Act's 
requirement that the Secretary of the Interior shall issue permits to 
take and possess eagles only when ``it is compatible with the 
preservation of the bald eagle or the golden eagle'' (16 U.S.C. 668a), 
we have issued permits for eagle exhibition only for nonreleasable 
eagles. Taking eagles from the wild is necessary for some scientific 
research and other purposes, but it is not required for educational use 
because sufficient numbers of nonreleasable eagles are available for 
use in educational programs. Therefore, the proposed eagle educational-
use regulations codify our policy of authorizing possession of 
nonreleasable eagles only.

Fees and Permit Tenure

    We propose an application processing fee of $100 for the 
educational use permit. This is $25 more than the $75 fee we currently 
assess for processing the Special Purpose permit and the Eagle 
Exhibition permit. However, the term of the proposed educational use 
permit would be five years, instead of the current three years, 
reducing the average cost per year. We propose to implement a $50 
amendment fee for substantive permit amendments, such as a change in 
the location and housing for the birds, increasing the number or 
species of birds, or adding new species to be held under the permit. 
Amendments for these types of permits are generally time-consuming and 
the $50 amendment fee will help us recoup a larger portion of the costs 
of administering these types of permits. To prevent an undue burden on 
the permittee and unnecessary workload for the Service, permits would 
authorize the maximum number of birds--and species--for which the 
permittee qualifies, based on (1) facilities and caging, (2) the nature 
of the educational programs, and (3) the permittee's experience in 
handling and caring for birds and presenting programs. Authorizing the 
upper limit of birds and species will limit the need for amendments to 
situations where the permittee substantially modifies his or her 
facilities, experience, and/or educational programs.

Transition of Current Permittees to Permits under New Regulations

    Current Special Purpose-Education permit holders and current Eagle 
Exhibition permit holders need not take any special action as a result 
of the new rule, if promulgated as proposed. When it is time to renew 
their permits, they should apply for renewal using the Service permit 
renewal form mailed to them by their Regional Permit Office. The 
permits will be renewed under the new permit categories created by this 
rule.

Application and Annual Reporting Requirements

    This proposed rule does not specify what information an applicant 
must submit to apply for an educational-use permit or to file an annual 
report, other than that he or she must submit a completed application 
form, including any required attachments, to apply for a permit; and 
for annual reporting, the permittee must submit all the information 
required on the report form. By avoiding codification of application 
and reporting requirements, we can revise application and reporting 
requirements without undergoing the time-consuming rulemaking process. 
However, the public will have the opportunity to provide input on the 
content of these forms. All forms must be approved by the Office of 
Management and Budget every three years, and as part of that process, 
all new forms and all changes to forms are subject to public review via 
a series of notices in the Federal Register. We are not proposing any 
substantive changes to the existing application and report forms at 
this time. We will continue to use FWS Form 3-200-10c as the 
application form for a permit to possess live birds for educational 
use, FWS Form 3-200-10d to apply for possession of dead migratory bird 
specimens for educational use, and FWS Form 3-200-14 for possession of 
eagles and eagle specimens for educational use.

Revisions to Migratory Bird Permit Exceptions

    This rule also proposes to amend regulations governing general 
migratory bird permit exceptions under Sec.  21.12. Some entities (such 
as municipal game farms) exempted under current regulations for 
possession of specimens such as feathers, mounts, bones, nests, and 
nonviable eggs would no longer be exempted from the permit requirement, 
generally because those entities do not provide conservation education. 
The rule clarifies what entities qualify under the remaining exemptions 
and specifies that the exemption is only for purposes of public 
conservation education and scientific research. Exempt institutions 
would be allowed to transfer migratory bird specimens to other exempt 
entities or to persons authorized by permit to possess such birds. The 
intent of the language within current regulations at Sec.  21.12(b)(1) 
regarding to whom exempt institutions may donate birds is unclear and 
has been interpreted to limit transfer of birds only to other exempt 
entities.
    The rule would limit the permit exception for possession of live 
birds to institutions accredited by the Association of Zoos and 
Aquariums (AZA). All other individuals and entities that keep live 
birds for education purposes would be required to obtain an educational 
use permit within one year after the final rule becomes effective. The 
permit-exempt AZA institutions would be required to comply with the 
husbandry standards and several other conditions that apply to 
permittees. These revisions would ensure that all entities that hold 
live birds for educational use are held to the same standards. Sale and 
purchase between exempt institutions and permittees and among exempt 
institutions would be restricted to captive-bred migratory birds. The 
rule would not allow exempt institutions to take birds from the wild; 
to do that, a scientific-purpose permit must be obtained.
    Entities that were previously exempted from the permit requirement 
would be allowed to retain any migratory live birds and dead specimens 
already in their possession on the date the rule becomes effective 
without a permit. However, a permit would be required to acquire and 
possess any additional live migratory bird, including progeny, or 
migratory bird specimen after that date without first obtaining the 
appropriate permit. Nor would such ``grandfathered'' holders be allowed 
to sell or transfer live birds or dead specimens without a permit. Live 
birds must be held under the husbandry standards of 21.32(b)(1)(i) 
though (vii) and 21.32(b)(2).
    Entities that remain exempt from the permit requirement to hold 
dead specimens would be allowed to accept such specimens from members 
of the public who, without a permit, pick them up. Those persons would 
be exempt from the permit requirement for such one-time salvage 
provided they promptly donate the specimens to a person or institution 
authorized to possess the specimens by permit or permit exception.

[[Page 57417]]

    We also propose new permit exemptions to allow Federal, State, 
tribal, or local natural resource agencies to collect and hold birds in 
the course of official duty. Finally, employees and agents of the 
National Oceanic and Atmospheric Administration's National Marine 
Fisheries Service, U.S. Department of Commerce, who monitor bycatch on 
fishing trawlers would not need a permit to possess migratory birds 
when carrying out those duties.

Minor Revisions to Rehabilitation Permit Regulations

    We propose three minor amendments to regulations governing permits 
for migratory bird rehabilitation at 50 CFR 21.31 because both changes 
have some relation to the use of birds held for educational use. First, 
we propose limited conditions under which birds undergoing 
rehabilitation for release to the wild can be intermingled with birds 
held under other types of permits. They could be housed with birds held 
under another type of permit only for fostering purposes, and only if 
the fostering bird continues to be used according to the purposes and 
conditions of the permit under which it is held.
    Second, we propose to allow nonreleasable birds to be kept 
indefinitely under the rehabilitation permit for purposes of foster 
parenting. Currently, the rehabilitation permit regulations require 
that all nonreleasable birds be transferred to other types of permits, 
such as educational use. However, the educational use permit authorizes 
possession only of birds used for educational purposes, and in some 
cases, a bird not suitable for educational use may make a good foster 
parent for orphaned young or juveniles undergoing rehabilitation. This 
amendment to the rehabilitation permit regulations would allow a 
suitable nonreleasable bird to be held under the rehabilitation permit 
indefinitely for foster parenting purposes if authorized by the 
regional migratory bird permit office.
    Finally, we are adding the requirement that the rehabilitator 
receive approval from the permit office before transferring a 
releasable wild raptor to a permitted falconer authorized to hold 
eagles under his or her falconry permit.

Required Determinations

    Responsibilities of Federal Agencies To Protect Migratory Birds 
(Executive Order 13186). This proposed rule has been evaluated for 
impacts to migratory birds, with emphasis on species of management 
concern, and is in accordance with the guidance in E.O. 13186.
    Regulatory Planning and Review (E. O. 12866). The Office of 
Management and Budget (OMB) has determined that this rule is not 
significant and has not reviewed this rule under Executive Order 12866 
(E. O. 12866). OMB bases its determination upon the following four 
criteria:
    (a) Whether the rule will have an annual effect of $100 million or 
more on the economy or adversely affect an economic sector, 
productivity, jobs, the environment, or other units of the government.
    (b) Whether the rule will create inconsistencies with other Federal 
agencies' actions.
    (c) Whether the rule will materially affect entitlements, grants, 
user fees, loan programs, or the rights and obligations of their 
recipients.
    (d) Whether the rule raises novel legal or policy issues.
    Regulatory Flexibility Act. Under the Regulatory Flexibility Act (5 
U. S. C. 601 et seq., as amended by the Small Business Regulatory 
Enforcement Fairness Act (SBREFA) of 1996), whenever an agency is 
required to publish a notice of rulemaking for any proposed or final 
rule, it must either certify that the rule will not have a significant 
economic impact on a substantial number of small entities (small 
business, small organizations, and small governmental jurisdictions), 
or prepare and make available for public comment a regulatory 
flexibility analysis that describes the effect of the rule on small 
entities.
    We have examined this proposed rule's potential effects on small 
entities as required by the Regulatory Flexibility Act. We estimate the 
proposed revisions to permit exemptions would require a permit to be 
obtained by about 400 institutions that are currently exempt from the 
permit requirement. Because approximately half of those institutions 
are governmentally funded and/or operated, they would not need to pay 
an application fee. Thus, if this proposal is adopted in full, we could 
expect about 200 institutions to pay a permit application fee that did 
not need to do so prior to this rulemaking, for a total cost of $20,000 
(200 x $100 per application).
    Some institutions that were previously exempt would incur costs in 
upgrading facilities to the standards required of permittees. However, 
we do not expect those costs to be high because many of these 
institutions already have suitable facilities.
    Some permittees who need substantive amendments made to their 
permits would be assessed a $50 amendment fee if this rule is adopted. 
We estimate approximately 100 permittees per year would pay this fee, 
totaling $5,000. Fees for new permits and permit renewals would 
increase by $25 (from $75 to $100). We currently receive approximately 
150 new permit applications and 200 renewals for migratory bird Special 
Purpose education and Eagle Exhibition permits per year. Were that to 
continue, the total permit application fee revenue increase would be 
$8,750 per year. However, this permit regulation would also extend the 
permit term from three years to five years, reducing total renewal fees 
by 40 percent ($20,000 x .4 = $8,000) per year, resulting in an overall 
fee increase of approximately $750 ($8,750 - $8,000) per year if the 
number of permittees were to remain unchanged. However, since this rule 
would likely result in about 200 new permittees who would be subject to 
application and renewal fees (as discussed above), averaging 40 new 
renewals ($4,000) per year, the net cost to permittees from this 
rulemaking will be $4,750 per year ($4,000 + $750). Therefore, we 
certify that this action would not have a significant economic impact 
on a substantial number of small entities. A final Regulatory 
Flexibility Analysis is not required.
    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 would not have an annual 
effect on the economy of $100 million or more. It would not cause a 
major increase in costs or prices for consumers, individual industries, 
Federal, State, or local government agencies, or geographic regions. 
This rule would not have a significant adverse effect on competition, 
employment, investment, productivity, innovation, or the ability of U. 
S. -based enterprises to compete with foreign-based enterprises.
    Unfunded Mandates Reform Act. In accordance with the Unfunded 
Mandates Reform Act (2 U.S.C. 1501, et seq.):
    a. This rule would not ``significantly or uniquely'' affect small 
governments. A Small Government Agency Plan is not required. We have 
determined and certified pursuant to the Unfunded Mandates Reform Act, 
2 U.S.C. 1502 et seq., that this rulemaking would not impose a cost of 
$100 million or more in any given year on local or State government or 
private entities.
    b. This rule would not produce a Federal mandate of $100 million or 
greater in any year. It is not a

[[Page 57418]]

``significant regulatory action'' under the Unfunded Mandates Reform 
Act.
    Takings. In accordance with Executive Order 12630, the rule does 
not have significant takings implications. This rule would not result 
in the physical occupancy of property, the physical invasion of 
property, or the regulatory taking of any property. A takings 
implication assessment is not required.
    Federalism. In accordance with Executive Order 13132, and based on 
the discussions in the Regulatory Planning and Review section above, 
this rule does not have significant Federalism effects. A Federalism 
assessment is not required. Due to the migratory nature of certain 
species of birds, the Federal Government has been given responsibility 
over these species by the Migratory Bird Treaty Act. This rule does not 
have a substantial effect on fiscal capacity, change the roles or 
responsibilities of Federal or State governments, or intrude on State 
policy or administration.
    Civil Justice Reform. In accordance with Executive Order 12988, the 
Office of the Solicitor has determined that the rule does not unduly 
burden the judicial system and meets the requirements of sections 3(a) 
and 3(b)(2) of the Order.
    Paperwork Reduction Act. This proposed rule does not contain new or 
revised information collection for which Office of Management and 
Budget approval is required under the Paperwork Reduction Act (44 
U.S.C. 3501 et seq.). Information collection associated with migratory 
bird permit programs is covered by existing OMB Control No. 1018-0022, 
which expires on November 30, 2010. The Service may not conduct or 
sponsor, nor is a person required to respond to, a collection of 
information unless it displays a current valid OMB control number.
    National Environmental Policy Act (NEPA) (42 U.S.C. 4321 et seq.). 
We have determined that this rule is categorically excluded under the 
Department's NEPA procedures in 516 DM 8.5(A)(1) because this rule 
codifies policies the Service is already implementing under a different 
regulation with changes that have ``no or minor potential environmental 
impact.'' The rule also is categorically excluded under 516 DM 
2.3(A)(9) because it is a regulation that is legal and procedural in 
nature with environmental effects that are too speculative to lend 
themselves to meaningful analysis and will later be subject to the NEPA 
process on a case-by-case basis. Although each permit issued under 
these proposed regulations would be subject to the NEPA process, we 
expect most if not all permits we issue to be categorically excluded 
under 516 DM 8.5(C)(1) because they will cause no environmental 
disturbance.
    Government-to-Government Relationship with Tribes. In accordance 
with the President's memorandum of April 29, 1994, ``Government-to-
Government Relations with Native American Tribal Governments'' (59 FR 
22951), E.O. 13175, and 512 DM 2, the Service did not consult with 
tribal authorities because this rule will have no effect on federally-
recognized Indian tribes.
    Energy Effects--Executive Order 13211. On May 18, 2001, the 
President issued Executive Order 13211 on regulations that 
significantly affect energy supply, distribution, and use. Executive 
order 13211 requires agencies to prepare Statements of Energy Effects 
when undertaking certain actions. This proposed rule is not a 
significant regulatory action under Executive Order 12866, and it is 
not expected to adversely affect energy supplies, distribution, or use. 
Therefore, this action is not a significant energy action and no 
Statement of Energy Effects is required.

Clarity of This Proposed Rule

    We are required by Executive Orders 12866 and 12988 and by the 
Presidential Memorandum of June 1, 1998, to write all rules in plain 
language. This means that each rule we publish must:
    (a) Be logically organized;
    (b) Use the active voice to address readers directly;
    (c) Use clear language rather than jargon;
    (d) Be divided into short sections and sentences; and
    (e) Use lists and tables wherever possible.
    If you feel that we have not met these requirements, send us 
comments by one of the methods listed in the ADDRESSES section. To 
better help us revise the rule, your comments should be as specific as 
possible. For example, you should tell us the numbers of the sections 
or paragraphs that are unclearly written, which sections or sentences 
are too long, the sections where you feel lists or tables would be 
useful, etc.

Literature Cited

    Arent, Lori, R. 2007. Raptors in Captivity: Guidelines for Care and 
Management. The Raptor Center, College of Veterinary Medicine at the 
University of Minnesota, St. Paul, Minnesota.
    Buhl, Gail and Lisa Borgia. 2004. Wildlife in Education: A Guide 
for the Care and Use of Program Animals. National Wildlife 
Rehabilitators Association, St. Cloud, Minnesota.

List of Subjects in 50 CFR Part 10

    Exports, Fish, Imports, Law enforcement, Plants, Transportation, 
Wildlife.

List of Subjects in 50 CFR Part 13

    Administrative practice and procedure, Exports, Fish, Imports, 
Plants, Reporting and recordkeeping requirements, Transportation, 
Wildlife.

List of Subjects in 50 CFR Part 21

    Exports, Hunting, Imports, Reporting and recordkeeping 
requirements, Transportation, Wildlife.

List of Subjects in 50 CFR Part 22

    Exports, Imports, Reporting and recordkeeping requirements, 
Transportation, Wildlife.

    For the reasons set forth in this preamble, we propose to amend 
title 50, chapter I, subchapter B of the CFR as follows:

PART 10 - GENERAL PROVISIONS

    1. The authority citation for part 10 continues to read as follows:

    Authority: 18 U.S.C. 42; 16 U.S.C. 703-712; 16 U.S.C. 668a-d; 19 
U.S.C. 1202; 16 U.S.C. 1531-1544; 16 U.S.C. 1361-1384, 1401-1407; 16 
U.S.C. 742a-742j-1; 16 U.S.C. 3371-3378.

    2. Amend Sec.  10.12 by revising the definition of ``Public'' as 
set forth below:


Sec.  10.12  Definitions.

* * * * *
    Public as used in referring to museums, zoological parks, and 
scientific or educational institutions, refers to those that are open 
to the general public and are either established, maintained, and 
operated as a governmental service or are privately endowed and 
organized but not operated for profit. This definition does not apply 
to the term ``public'' as used in migratory bird and eagle permit 
regulations. With reference to migratory bird and eagle permits, see 
definitions under Sec.  21.3 and Sec.  22.3 of this subchapter.
* * * * *

PART 13 - GENERAL PERMIT PROCEDURES

    3. The authority citation for part 13 continues to read as follows:

    Authority: 16 U.S.C. 668a, 704, 712, 742j-1, 1374(g), 1382, 
1538(d), 1539, 1540(f), 3374, 4901-4916; 18 U.S.C. 42; 19 U.S.C. 
1202; 31 U.S.C. 9701.


[[Page 57419]]


    4. Amend the table in Sec.  13.11(d)(4) as follows:
    a.Under the heading ``Migratory Bird Treaty Act,'' remove the entry 
for ``Migratory Bird Special Purpose/Education;''
    b.Under the heading ``Migratory Bird Treaty Act,'' add an entry for 
``Educational Use'' immediately following the entry for ``Migratory 
Bird Rehabilitation'' to read as set forth below;
    c.Under the heading ``Bald and Golden Eagle Protection Act,'' 
remove the entries for ``Eagle Scientific Collecting'' and ``Eagle 
Exhibition'';
    d.Under the heading ``Bald and Golden Eagle Protection Act,'' add 
an entry for ``Eagle Scientific Purpose'' as the first entry to read as 
set forth below; and
    e.Under the heading ``Bald and Golden Eagle Protection Act,'' add 
an entry for ``Eagle Educational Use'' immediately following the entry 
for ``Golden Eagle Nest Take'' to read as set forth below.


Sec.  13.11  Application procedures.

* * * * *
    (d) * * *
    (4) User fees. * * *

----------------------------------------------------------------------------------------------------------------
 
----------------------------------------------------------------------------------------------------------------
Type of Permit                         CFR Citation             Fee                      Amendment Fee
----------------------------------------------------------------------------------------------------------------


                                            Migratory Bird Treaty Act
----------------------------------------------------------------------------------------------------------------
 
----------------------------------------------------------------------------------------------------------------
                                                  * * * * * * *
----------------------------------------------------------------------------------------------------------------
Educational Use                        50 CFR 21                100                      50
----------------------------------------------------------------------------------------------------------------
                                                  * * * * * * *
----------------------------------------------------------------------------------------------------------------


                                      Bald and Golden Eagle Protection Act
----------------------------------------------------------------------------------------------------------------
 
----------------------------------------------------------------------------------------------------------------
Eagle Scientific Purpose               50 CFR 22                100                      50
----------------------------------------------------------------------------------------------------------------
                                                  * * * * * * *
----------------------------------------------------------------------------------------------------------------
Eagle Educational Use                  50 CFR 22                100                      50
----------------------------------------------------------------------------------------------------------------
                                                  * * * * * * *
----------------------------------------------------------------------------------------------------------------

* * * * *
    5. Amend the table in Sec.  13.12(b) as follows:
    a. Add one entry in numerical order by section number under 
``Migratory Bird permits'' for ``Educational use'' to read as follows;
    b. Remove the entry for ``Scientific or exhibition'' under ``Eagle 
permits;''
    c. Add two entries in numerical order by section number under 
``Eagle permits'' for ``Eagle scientific purpose'' and ``Eagle 
educational use'' to read as set forth below.


Sec. 13.12  General information requirements on applications for 
permits.

* * * * *
    (b) * * *

------------------------------------------------------------------------
                       Type of permit                          Section
------------------------------------------------------------------------
                                * * * * *
------------------------------------------------------------------------
                         Migratory bird permits:
------------------------------------------------------------------------
                                * * * * *
------------------------------------------------------------------------
 Educational use                                                  21. 32
------------------------------------------------------------------------
                                * * * * *
------------------------------------------------------------------------
                             Eagle permits:
------------------------------------------------------------------------
 Eagle scientific purpose                                          22.21
------------------------------------------------------------------------
                                * * * * *
------------------------------------------------------------------------
 Eagle educational use                                             22.29
------------------------------------------------------------------------
                                * * * * *
------------------------------------------------------------------------

PART 21--MIGRATORY BIRD PERMITS

    6. The authority citation for part 21 continues to read as follows:

    Authority: Migratory Bird Treaty Act, 40 Stat. 755 (16 U.S.C. 
703); Public Law 95-616, 92 Stat. 3112 (16 U. S. C. 712(2)); Public 
Law 106-108, 113 Stat. 1491, Note Following 16 U.S.C 703.

    Subpart A--INTRODUCTION
    7. Amend Sec.  21.2 by revising paragraph (b) to read as follows:


Sec.  21.2  Scope of regulations.

* * * * *
    (b) This part, except for Sec.  21.12(a), (b)(3), and (c) (general 
permit exceptions); Sec.  21.22 (banding or marking); Sec.  21.29 
(Federal falconry standards); Sec.  21.31 (rehabilitation); and Sec.  
21.32 (educational use), does not apply to the bald eagle (Haliaeetus 
leucocephalus) or the golden eagle (Aquila chrysaetos), for which 
regulations are provided in part 22 of this subchapter.
* * * * *
    8. Amend Sec.  21.3 by revising the introductory text and adding 
the definitions ``Nonreleasable bird'', ``Open to the general public'', 
``Public institution'', ``Public museum'', and ``Public zoological 
park'' in alphabetical order to read as follows:


Sec.  21.3  Definitions.

    The following definitions are in addition to those contained in 
part 10 of this chapter, and, unless the context of a section provides 
otherwise, apply within this part:
* * * * *
    Nonreleasable bird means a migratory bird that has sustained 
injuries that will likely prevent it from surviving in the wild even 
after medical treatment and/or rehabilitation, or a migratory bird that 
has been imprinted or habituated to human presence and has lost 
instincts necessary to survive in the wild.
    Open to the general public means available to the general public 
and not restricted to any individual or set of individuals, whether or 
not a fee is charged.
* * * * *
    Public institution means a public museum; public zoological park; 
or a facility that is open to the general public, provides education 
through exhibits or regular programs, and is maintained and/or operated 
by a Federal, State, tribal, or local government agency, such as a 
State

[[Page 57420]]

university, municipal zoo, or county-run nature center.
    Public museum means a facility accredited by the American 
Association of Museums that houses collections of objects and artifacts 
of cultural or scientific interest for purposes of scientific research 
or public exhibition, and which is open to the general public at least 
400 hours per year on a schedule of regular, publicized hours.
    Public zoological park means a facility that is either accredited 
or certified as a Related Facility by the Association of Zoos and 
Aquariums. The facility must contain permanent collections of live 
animals, and must either be open to the general public on a regular 
basis at least 400 hours per year, or must conduct at least 12 
educational programs each year about ecology and wildlife conservation 
that are open to the general public.
* * * * *

Subpart B--General Requirements and Exceptions

    9. Amend Sec.  21.12 as follows:
    a. By revising the introductory text and paragraph (a), the 
introductory text of paragraph (b), and paragraph (b)(1) as set forth 
below;
    b. By redesignating paragraph (b)(2) as paragraph (b)(3);
    c. By adding a new paragraph (b)(2) to read as set forth below; and
    d. By adding a new paragraph (e) to read as set forth below.


Sec.  21.12  General exceptions to permit requirements.

    The following exceptions to the permit requirements of Sec.  21.11 
are authorized:
    (a) Law Enforcement personnel of the Department of the Interior 
(DOI), tribes, and States: If authorized to enforce the provisions of 
the Migratory Bird Treaty Act, DOI employees and commissioned law 
enforcement officers of State agencies (including the District of 
Columbia, and the territories of the United States) and tribal 
agencies, may, without a permit, take or otherwise acquire, hold in 
custody, transport, or dispose of migratory birds (alive or dead, 
including parts, nests, and eggs) as necessary in performing official 
duties.
    (b) Employees and agents of Federal, State, tribal, and local 
agencies:
    (1) Any employee or agent of the Service, any other Federal land 
management agency, the U.S. Geological Survey, the National Marine 
Fisheries Service, or a State, tribal, or local natural resource 
agency, who is designated by his or her agency for such purposes may, 
in the course of official duties, take and possess migratory birds from 
the wild without a permit if such action is necessary to aid sick, 
injured, or orphaned birds; dispose of dead birds or eggs; or salvage 
and possess bird specimens, parts, nests, or eggs for scientific 
purposes. This exemption to salvage migratory birds does not apply to 
carcasses for which there is reasonable evidence to indicate the bird 
was killed as the result of criminal activity, including, but not 
limited to, unauthorized shooting, electrocution, or collision with 
wind turbines.
    (2) Any person on a vessel who provides observer services required 
by the National Marine Fisheries Service (NMFS) under authority of the 
Magnuson-Stevens Fishery Conservation and Management Act of 1976 (16 
U.S.C. 1801 et seq.); the Marine Mammal Protection Act of 1972 (16 
U.S.C. 1361 et seq.); the Atlantic Tunas Convention Act of 1975 (ATCA; 
16 U.S.C. 971 et seq.); the South Pacific Tuna Act of 1988 (16 U.S.C. 
973 et seq.); and/or the Endangered Species Act of 1973 (16 U.S.C. 1531 
et seq.), and who is either employed by NMFS, employed by a NMFS-
approved observer service provider, or certified by NMFS and employed 
directly by a fishery participant, may, without a permit, possess and 
transport dead migratory birds or parts found during the performance of 
their official duties as observers, including the proper disposition of 
such birds or parts, provided that:
    (i) Possession and transportation of such migratory birds or parts 
is for identification purposes or disposition with the Service or NMFS; 
and
    (ii) The observer submits species samples and identification along 
with any other required data to the appropriate NMFS observer program.
* * * * *
    (e) Public and educational institutions:
    (1) Public institutions, and accredited public and private schools 
(elementary through postgraduate) may possess nonliving migratory bird 
specimens, except those of bald eagles and golden eagles, including 
nonviable eggs, parts, and nests, for scientific or conservation 
educational purposes without a permit. Employees or agents of such 
institutions and schools may salvage nonliving migratory bird 
specimens, except bald eagles and golden eagles, provided the specimens 
will be used for the conservation education purposes of the institution 
or school, and provided that:
    (i) The institutions and schools dispose of and acquire such 
specimens, by donation only, to and from one another; to and from 
Federal, State, or tribal officials authorized to place such specimens; 
and to and from holders of valid permits authorizing possession of 
them.
    (ii) The institutions may acquire nonliving migratory bird 
specimens, except bald eagles and golden eagles, from persons who do 
not have permits to collect or possess the specimens but who salvaged 
them. For such one-time salvage activity, the individual will be exempt 
from the permit requirement for collection and possession, provided the 
specimen is promptly donated to an exempt or permitted entity for 
scientific or educational purposes.
    (iii) The institutions keep accurate and complete records of all 
migratory bird specimens in their possession and their source, 
including the name and address of all donors and transferees, for 5 
calendar years following the end of the calendar year covered by the 
records.
    (2) Accredited institutional members of the American Zoo and 
Aquarium Association do not need a permit to possess live, 
nonreleasable or captive-bred migratory birds, including captive-bred 
eggs, for use in education, research, or propagation. Accredited AZA 
institutions may acquire such birds or eggs from or transfer such birds 
or eggs to other accredited institutional members of the American Zoo 
and Aquarium Association (AZA) by donation, sale, purchase, or barter 
solely for use in education, research, or propagation. Accredited AZA 
institutions may, by donation only, transfer birds to Federal and State 
officials authorized to place such birds, or anyone with a valid 
Federal permit to possess such birds. All birds possessed under this 
permit exemption must be housed and cared for in accordance with the 
husbandry requirements set forth in Sec.  21.32(b) of this Subchapter. 
Nothing in this section authorizes such institutions to take live 
migratory birds, parts, nests, or eggs from the wild.
    (3) Entities that hold live migratory birds and/or nonliving 
migratory bird specimens and that were previously exempt from the 
permit requirement before [insert date 30 days after the date of the 
final rule's publication in the Federal Register], and which are no 
longer exempt may retain any migratory birds, live or dead, already in 
their possession on [insert date 30 days after the date of the final 
rule's publication in the Federal Register] without a permit. Live 
birds must be held under the husbandry standards of 21.32(b)(1)(i) 
through (vii) and 21.32(b)(2). A permit is required to

[[Page 57421]]

acquire and possess any additional live migratory bird, including 
progeny, or migratory bird specimen after that date or to sell or 
otherwise transfer any lawfully possessed migratory bird without first 
obtaining a permit under this part.
* * * * *

Subpart C--Specific Permit Provisions

    10. Amend Sec.  21.31 as follows:
    a. By revising paragraphs (a), (b)(1)(i), and (e)(1)(v) as set 
forth below;
    b. By adding a new sentence immediately after the first sentence of 
paragraph (e)(4)(ii) as set forth below; and
    c. By adding a new sentence immediately after the first sentence of 
paragraph (e)(4)(v) to read as set forth below.


Sec.  21.31  Rehabilitation permits.

    (a) What is the permit requirement? Except as provided in Sec.  
21.12, a rehabilitation permit is required to take, possess, or 
transport a migratory bird for rehabilitation purposes. However, any 
person who finds a sick, injured, or orphaned migratory bird may, 
without a permit, take possession of the bird in order to immediately 
transport it to a permitted rehabilitator.
    (b) * * *
    (1) * * *
    (i) Take from the wild or receive from another person sick, 
injured, or orphaned migratory birds and to possess them and provide 
rehabilitative care for them for up to 180 days, and for over 180 days 
for foster parenting purposes, with authorization from the regional 
migratory bird permit office.
* * * * *
    (e) * * *
    (1) * * *
    (v) Birds must be housed only with compatible migratory bird 
species, and only with other birds held for rehabilitation purposes, 
except that, for foster parenting purposes, juveniles and orphaned 
birds may be housed with birds held under another type of permit, 
provided that the fostering bird continues to be used according to the 
purposes and conditions of the permit under which it is held.
* * * * *
    (4) * * *
    (ii) * * * Prior to transferring a live bird, you must submit a FWS 
Form 3-202-12 to your migratory bird permit issuing office and receive 
authorization for the transfer. * * *
* * * * *
    (v) * * * With such approval, you may retain a nonreleasable bird 
under your rehabilitation permit on a continuing basis for foster 
parenting purposes.
* * * * *
    11. Add a new Sec.  21.32 to subpart C to read as follows:


Sec.  21.32  Educational-use permits.

    (a) Purpose and scope.
    (1) The migratory bird educational-use permit authorizes possession 
of migratory birds for use in public educational programs and exhibits 
in which migratory bird conservation, natural history, biology, and/or 
ecology is a primary component of the program or exhibit. The permit 
may authorize possession of live nonreleasable or captive-bred birds, 
nonliving specimens, or both. The permit may also authorize salvage of 
nonliving migratory bird specimens for educational use.
    (2) All live birds you hold under this permit must be nonreleasable 
or captive-bred individuals of a species your permit authorizes you to 
possess. You may not possess more birds than is specified on the face 
of your permit.
    (b) Husbandry requirements for keeping live birds for educational 
use.
    (1) Caging requirements.
    (i) Cages must allow sufficient movement to accommodate feeding, 
roosting, and maintenance behaviors without harm to the bird or damage 
to its feathers. The approximate cage size will vary with the size of 
your bird, whether it is flighted (capable of flying) or nonflighted 
(incapable of flying), the number of birds occupying the cage, and the 
traits of the particular species.
    (ii) The design of your caging must take into account the natural 
history of the species you are housing, as well as the special needs of 
individual birds.
    (iii) The caging must be made of a material that will not entangle 
or cause injury to the type of bird that will be housed within. The 
floors must not be abrasive to the birds' feet.
    (iv) Cages must be secure and provide protection from predators, 
domestic animals, undue noise, human disturbance, sun, wind, and 
inclement weather.
    (v) Cages must be well-drained and kept clean.
    (vi) You must provide adequate numbers of appropriately-sized 
perches for birds under your care.
    (vii) You may house birds only with nonaggressive individuals of 
compatible species.
    (viii) Cages for all birds except raptors must approximate the 
dimensions and design recommended by the National Wildlife 
Rehabilitators Association's Wildlife in Education: A Guide for the 
Care and Use of Program Animals (2004), except for variations that are 
reasonable and necessary to accommodate particular circumstances and 
are approved by your regional migratory bird permit office based on a 
showing by you that the variance will not adversely affect migratory 
birds.
    (ix) Cages for raptors must approximate the dimensions and design 
recommended by the University of Minnesota Raptor Center's Raptors in 
Captivity: Guidelines for Care and Management (2007), except for 
variations that are reasonable and necessary to accommodate particular 
circumstances, and are approved by the regional migratory bird permit 
office based on a showing by you that the variance will not adversely 
affect migratory birds.
    (x) Recommended cage dimensions for program raptors are shown in 
the following table:

----------------------------------------------------------------------------------------------------------------
                                                          Length feet         Width feet          Height feet
             Species                                       (meters)            (meters)            (meters)
----------------------------------------------------------------------------------------------------------------
Sharp-shinned hawk                Fully flighted      5 (1.5)             5 (1.5)             7 (2.1)
American kestrel................  ..................  ..................  ..................  ..................
Merlin..........................  Nonflighted or      3 (0.9)...........  3 (0.9)...........  3 (0.9)
Boreal owl......................   tethered.
Burrowing owl...................
Eastern screech owl.............
Northern saw-whet owl...........
Pygmy owl.......................
Western screech owl.............
----------------------------------------------------------------------------------------------------------------

[[Page 57422]]

 
Cooper's hawk                     Fully flighted or   14 (4.3)            6 (1.8)             7 (2.1)
Northern goshawk................   display only       ..................  ..................  ..................
Northern harrier................  ..................  6 (1.8)...........  6 (1.8)...........  7 (2.1)
                                  Nonflighted or
                                   tethered.
----------------------------------------------------------------------------------------------------------------
Broad-winged hawk                 Fully flighted      10 (3.0)            8 (2.4)             7 (2.1)
Mississippi kite................  ..................  ..................  ..................  ..................
Peregrine falcon................  Nonflighted or      6 (1.8)...........  6 (1.8)...........  7 (2.1)
Prairie falcon..................   tethered.
Common barn owl.................
Long-eared owl..................
Short-eared owl.................
----------------------------------------------------------------------------------------------------------------
Ferruginous hawk                  Fully flighted      12 (3.6)            8 (2.4)             7 (2.1)
Harris's hawk...................  ..................  ..................  ..................  ..................
Red-shouldered hawk.............  Nonflighted or      8 (2.4)...........  8 (2.4)...........  7 (2.1)
Red-tailed hawk.................   tethered.
Rough-legged hawk...............
Swainson's hawk.................
Swallow-tailed kite.............
Crested caracara................
Barred owl......................
Great grey owl..................
Great horned owl................
Snowy owl.......................
----------------------------------------------------------------------------------------------------------------
Osprey                            Fully flighted      40 (12.2)           10 (3.0)            9 (2.7)
Bald Eagl