Notice of Continued Suspension of Imports of Zimbabwe Elephant Trophies Taken On or After April 4, 2014, 42524-42527 [2015-17537]
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42524
Federal Register / Vol. 80, No. 137 / Friday, July 17, 2015 / Notices
BILLING CODE 9110–12–P
(Presidentially Declared Disasters); 97.039,
Hazard Mitigation Grant.
DEPARTMENT OF HOMELAND
SECURITY
W. Craig Fugate,
Administrator, Federal Emergency
Management Agency.
[FR Doc. 2015–17607 Filed 7–16–15; 8:45 am]
[FR Doc. 2015–17612 Filed 7–16–15; 8:45 am]
Federal Emergency Management
Agency
BILLING CODE 9111–23–P
[Internal Agency Docket No. FEMA–4222–
DR; Docket ID FEMA–2015–0002]
DEPARTMENT OF THE INTERIOR
Fish and Wildlife Service
[FWS–HQ–IA–2015–N077;
FXIA16710900000–145–FF09A30000]
Notice of Continued Suspension of
Imports of Zimbabwe Elephant
Trophies Taken On or After April 4,
2014
Fish and Wildlife Service,
Interior.
ACTION: Notice.
DEPARTMENT OF HOUSING AND
URBAN DEVELOPMENT
AGENCY:
Oklahoma; Amendment No. 8 to Notice
of a Major Disaster Declaration
[Docket No. FR–5828–N–29]
SUMMARY:
Federal Emergency
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Federal Property Suitable as Facilities
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AGENCY:
ACTION:
Notice.
Effective date: June 17, 2015.
Dean Webster, Office of Response and
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Management Agency, 500 C Street SW.,
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The notice
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Rogers County for Individual Assistance.
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Craig, Custer, Dewey, Grant, Jefferson, Kay,
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Kiowa, Oklahoma, and Wagoner Counties
for Public Assistance (already designated for
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Jkt 235001
Notice.
This Notice identifies
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VerDate Sep<11>2014
ACTION:
SUMMARY:
May 26, 2015, and related
determinations.
DATES:
DATES:
Office of the Assistant
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AGENCY:
This notice amends the notice
of a major disaster declaration for the
State of Oklahoma (FEMA–4222–DR),
dated
SUMMARY:
FOR FURTHER INFORMATION CONTACT:
Juanita Perry, Department of Housing
and Urban Development, 451 Seventh
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number for the hearing- and speechimpaired (202) 708–2565, (these
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In
accordance with the December 12, 1988
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identifying unutilized, underutilized,
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purpose of announcing that no
additional properties have been
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SUPPLEMENTARY INFORMATION:
Dated: July 9, 2015.
Juanita Perry,
SNAPS Specialist/Title V Lead, Office of
Special Needs Assistance Programs.
[FR Doc. 2015–17270 Filed 7–16–15; 8:45 am]
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On March 26, 2015, the U.S.
Fish and Wildlife Service (Service)
made a determination that the
suspension on the import of sporthunted African elephant trophies taken
in Zimbabwe on or after April 4, 2014,
would be continued until further notice.
The decision to continue the suspension
on importation of African elephant
trophies taken in Zimbabwe through the
2015 hunting season and future hunting
seasons is due to the Service’s inability
to determine that the killing of the
animal whose trophy is intended for
import into the United States would
enhance the survival of the species in
the wild. The suspension on
importation of trophies taken during
calendar year 2015 or future hunting
seasons could be lifted if additional
information on the status and
management of elephants in Zimbabwe
becomes available which satisfies the
conditions of the 4(d) special rule under
the Endangered Species Act (Act).
ADDRESSES: Timothy J. Van Norman,
Chief, Branch of Permits, Division of
Management Authority, U.S. Fish and
Wildlife Service, MS: IA, 5275 Leesburg
Pike, Falls Church, VA 22041–3803; fax
(703) 358–2280; or email DMAFR@
fws.gov.
FOR FURTHER INFORMATION CONTACT:
Timothy J. Van Norman, (703) 358–2104
(telephone); (703) 358–2280 (fax); or
DMAFR@fws.gov (email).
SUPPLEMENTARY INFORMATION: The
African elephant (Loxodonta africana)
is listed as threatened under the
Endangered Species Act (Act), 16 U.S.C.
1531 et seq., and is regulated under a
special rule found at 50 CFR 17.40(e).
The special rule includes specific
requirements for the import of sporthunted trophies. Under paragraph
17.40(e)(3)(iii)(C), in order for the
Service to authorize the import of a
sport-hunted elephant trophy, the
Service must find that the killing of the
animal whose trophy is intended for
import would enhance the survival of
the species in the wild (an
‘‘enhancement finding’’).
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Federal Register / Vol. 80, No. 137 / Friday, July 17, 2015 / Notices
Zimbabwe has had an active elephant
hunting program for over 20 years, and
imports into the United States have
occurred at least since 1997, when the
Zimbabwe elephant population, along
with populations in Botswana and
Namibia, was downlisted to Appendix II
of the Convention on International
Trade in Endangered Species of Wild
Fauna and Flora (CITES) (South Africa’s
population was downlisted at a later
date). When the population was
downlisted, the Service published a
notice in the Federal Register regarding
the downlisting that acknowledged that,
because elephants in Zimbabwe were an
Appendix-II population, no U.S. import
permit would be required to import
trophies, but we did state that, in
accordance with the special rule under
the Act, the requirement for an
enhancement finding would continue to
apply (62 FR 44627; August 22, 1997).
In that notice, we stated that, in making
the required enhancement finding for
the import of sport-hunted trophies, the
Service would review the status of the
elephant population and the total
management program for elephants in
each country to ensure that the program
was promoting the conservation of the
species.
On April 4, 2014, the Service
announced an interim suspension of
imports of sport-hunted elephant
trophies taken in Zimbabwe during the
2014 season. This finding was revised
on April 17, 2014, primarily to clarify
that the suspension applied only to
elephants hunted on or after April 4,
2014. This determination was
announced in the Federal Register on
May 12, 2014 (79 FR 26986). The
decision to establish an interim
suspension of imports of elephant
trophies from Zimbabwe was due to the
Service having insufficient information
on the status of elephants in Zimbabwe
and on Zimbabwe’s current elephant
management program to make an
enhancement finding. On July 17, 2014,
the Service found that the import of
elephant trophies taken in Zimbabwe in
2014 on or after April 4, 2014, would be
suspended; this finding was revised on
July 22 to make non-substantive
corrections. This determination was
announced in the Federal Register on
July 31, 2014 (79 FR 44459). The
decision to uphold the suspension on
July 17, 2014, was due to the Service
being unable to make an enhancement
finding even after receiving additional
materials from Zimbabwe’s Parks and
Wildlife Management Authority
(ZPWMA) and others. The Service
decided on March 26, 2015, to continue
the July 2014 suspension until such
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time as the Service can determine that
the importation of sport-hunted
elephant trophies from Zimbabwe meet
the criteria under the regulations at 50
CFR 17.40(e)(3)(iii)(C). The Service’s
March 26, 2015, decision was again due
to the Service being unable to make an
enhancement finding even after
receiving additional materials from
Zimbabwe’s Parks and Wildlife
Management Authority (ZPWMA) and
others.
Prior to April 4, 2014, the Service had
limited information regarding the
elephant population in Zimbabwe, its
management, and how U.S. hunters
were contributing to the enhancement of
the species within Zimbabwe. Due to
this limited information, the Service
determined that it did not have
sufficient information to make the
required determination under paragraph
17.40(e)(3)(iii)(C), and therefore
announced an interim suspension on
April 4, 2015 (revised on April 17), until
such time as sufficient information was
obtained that would allow the Service to
make the required finding. On April 4,
2014, the Service also sent a letter to
Zimbabwe requesting information
regarding the status of elephants in
Zimbabwe and the hunting program. On
April 17, 2014, the Director-General of
ZPWMA sent a response to the Service
inquiry. Several weeks later, the Service
received a number of documents, copies
of Zimbabwean laws, and other
supporting documentation that was
referenced in the ZPWMA response. In
addition, since that time, the Service
has received additional supporting
information from individuals and
associations connected to the hunting
industry in Zimbabwe or southern
Africa and U.S.-based conservation and
hunting nongovernmental organizations
(NGOs). The Service also delivered a
second letter, dated October 31, 2014, to
ZPWMA while attending the 13th
Annual African Wildlife Consultative
Forum in Ethiopia. This letter requested
clarification of information submitted to
the Service, and also requested
additional information to address
questions that were raised from our
review of available information. The
Service received a response to this
inquiry on December 10, 2014.
Based on the information provided,
Zimbabwe’s current national elephant
management plan consists primarily of
two documents: The Policy and Plan for
Elephant Management in Zimbabwe
(1997) and Elephant Management in
Zimbabwe, third edition (July 1996).
Although the documents provide a welldeveloped list of goals and objectives,
there is no information in these
documents on how to achieve or fulfill
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these goals and objectives, nor do there
appear to be any subsequent updates of
the documents or reports that provide
any indication of progress on fulfilling
these management goals and objectives.
Without management plans with
specific goals and actions that are
measurable and reports on the progress
of meeting these goals, the Service
cannot determine if ZPWMA is
implementing the general goals and
objectives that appear in Elephant
Management in Zimbabwe and The
Policy and Plan for Elephant
Management in Zimbabwe. In December
2014, a workshop, hosted by ZPWMA,
was held at the Hwange Safari Lodge,
Zimbabwe, to discuss revisions to the
management plans, particularly to
establish clearer goals and measurable
outcomes. It appears that the
participants of the workshop agreed on
a framework for a revised management
plan that maintained the original 1997
long-term vision and the three target
goals (i.e., maintain at least four
demographically and genetically viable
populations; maintain or increase
elephant range; maintain numbers/
densities of elephants at levels that do
not adversely impact biodiversity
conservation goals while contributing to
economically viable and sustainable
wildlife-based land uses). The
participants also began work on
identifying strategic objectives and
outputs, as well as recognizing some key
activities, and starting to identify key
performance indicators. Additional
work is required to finalize the revised
management plan. Once this work is
completed, the Service will have an
opportunity to evaluate the revised plan
to determine if, in conjunction with
other management actions, the criteria
under 50 CFR 17.40(e)(3)(iii)(C) have
been met. However, based on the
information available to the Service,
there is not currently any information
indicating that Zimbabwe is
implementing, on a national scale,
appropriate management measures for
its elephant populations.
One concern expressed in the April
2014 and July 2014 findings was
whether management of elephants in
Zimbabwe was based on accurate
population estimates. According to the
IUCN SSC African Elephant Database
report 2013 Africa, the elephant
population in Zimbabwe in 2007 was
estimated to be 99,107, and in 2012, it
was estimated at 100,291. However,
these estimates were primarily based on
older surveys, some of which dated back
to 2001. In 2014, a nationwide survey
was conducted in Zimbabwe as part of
the Pan African Elephant Aerial Survey.
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Preliminary results from the survey
indicate that the overall estimated
population of elephants in Zimbabwe
was 82,000 to 83,000, approximately 20
percent lower than the 2012 estimate.
There was an increase in two of the
subpopulations within Zimbabwe
(North West Matabeleland Region—
2001 estimate of 49,312 elephants, and
2014 estimate of 53,949; Gonarezhou
National Park—2013 estimate of 10,151
elephants, and 2014 estimate of 10,722),
but a decline in the other two
subpopulations (Mid Zambezi Valley—
2014 estimate of 12,211 elephants,
down from 19,297 in 2001; Sebungwe
Region—2014 estimate of 3,634,
compared to 13,988 in 2001). With the
recent survey, ZPWMA should have
more accurate population estimates for
each subpopulation to establish
appropriate off-take levels to maintain a
healthy population of elephants.
According to information provided to
the Service, Zimbabwe has a
methodology, including participation
from a number of stakeholders, for
establishing annual hunting quotas for
all areas of the country. However, while
the described methodology appears to
be based on sound wildlife management
principles, the Service continues to
have fundamental questions regarding
how quotas are specifically established
and how overall off-take, such as
poaching and problem animal control,
were taken into account, or to what
degree biological factors are taken into
consideration (as opposed to economic
and societal considerations). The
current quota setting process utilized by
ZPWMA may take into consideration
the issues raised in the Service’s
finding; however, without
documentation of the system providing
an explanation of the system used and
describing the calculations, the Service
cannot determine if sport-hunting
quotas are reasonable or beneficial to
elephant populations and, therefore,
whether sport-hunting is enhancing the
survival of the species.
The Zimbabwean Parks and Wild Life
Act has established the regulatory
mechanism for the ZPWMA and its
programs, and also provides for
substantial penalties for the unlawful
possession of or trading in ivory. In
addition, the General Laws Amendment
Act (No. 5) of 2010 provides for
mandatory imprisonment of not less
than 9 years for poaching. If properly
enforced, it appears these penalties
would be a sufficient deterrent for
poachers. However, based on the
information available to the Service, we
do not have a good understanding of the
ZPWMA’s annual operational budget,
how much money is generated by
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20:59 Jul 16, 2015
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elephant hunting, or how these funding
levels impact the ability of ZPWMA to
adequately implement the Parks and
Wild Life Act or to carry out day-to-day
management activities or anti-poaching
efforts. In January 1996, the Government
of Zimbabwe approved the
establishment of the Parks and Wild Life
Conservation Fund, a statutory fund
responsible for financing operations
directly from wildlife revenues.
However, revenues generated through
sport-hunting conducted on State and
private lands are primarily used to
finance ZPWMA, and only limited
additional funding is available from
appropriated funds from the Zimbabwe
government or outside funding from
NGOs. While the Service did receive
additional information from ZPWMA
and other sources on the revenue
generated through hunting (in general)
and other sources (in general), we still
lack sufficient information on revenue
generated through elephant hunting,
particularly from U.S. hunters. It is
possible that additional documentation
could be provided to substantiate claims
that revenue from U.S. hunters
generated through elephant hunting
provides a significant benefit to
elephants in the wild, but until such
time, we are unable to determine if
these claims are accurate.
In 1989, Zimbabwe established the
Communal Areas Management
Programme for Indigenous Resources
(CAMPFIRE) to encourage reduction in
human-elephant conflicts through
conservation-based community
development and to provide an
economic incentive to improve
community tolerance of wildlife,
including elephants. In the past, the
CAMPFIRE program has been the model
for community-based conservation
efforts in several other African countries
and was identified as an innovative
program. Under a community-based
conservation program, like CAMPFIRE,
rural communities should benefit from
revenue generated by sport-hunting.
With increased human-elephant
conflicts on Communal lands, sporthunting may be an important tool that
gives these communities a stake in
sustainable management of the elephant
as a natural and economic resource and
provides the enhancement that would
meet the U.S. criteria for authorizing
imports of trophies. Much of the
information provided to the Service
over the past year focused on the
benefits U.S. hunters provided to
CAMPFIRE activities and communitybased wildlife management. However,
the information did not provide a clear
connection between hunting revenues
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coming from U.S. hunters (e.g., how
much is generated for communities),
and indicated that over time, the
management of wildlife and benefits
provided through CAMPFIRE may have
declined. It appears that these concerns
were expressed during the November
2014 CAMPFIRE Stakeholder’s
Workshop held in Zimbabwe. The
discussions and recommendations
touched on the effectiveness of the
CAMPFIRE concept and its relationship
to tourist hunting. Participants at the
workshop appeared to have made a
good start at addressing issues raised by
representatives of Rural Development
Councils (RDCs), as well as the need for
CAMPFIRE to face challenges with
limited resources and capacity. It was
recognized that there needed to be
strong involvement with ZPWMA and
safari operators since CAMPFIRE is in
areas where there have been both
elephant population declines and
increased poaching. While the Service’s
concerns expressed in our earlier
findings regarding community-based
wildlife management have not been
sufficiently addressed in the
information provided to the Service to
date, there does appear to be movement
in better defining the role that
CAMPFIRE and community-based
wildlife management can play in
elephant management, particularly in
association with U.S. hunters.
As was stated in the July 2014 and
March 26, 2015, findings, there are
clearly ‘‘bright spots’’ of elephant
conservation efforts being carried out by
non-governmental entities and
individuals in Zimbabwe that are
providing a benefit to elephants.
Individual safari outfitters and
landowners have established their own
management efforts, including antipoaching activities, on areas under their
control, either through ownership of the
land or leases. These entities have made
significant strides to ensure the longterm survival of elephants on their
lands. These efforts, however, have been
adversely affected by unilateral or
seemingly arbitrary actions taken by the
central government or RDC, such as
land redistribution activities, which
minimize conservation efforts, and
reduced lease durations. These ‘‘bright
spots’’ are not numerous enough, in and
of themselves, to overcome the
problems currently facing Zimbabwe
elephant populations or to support a
finding that sport hunting throughout
Zimbabwe would enhance the survival
of the species. While additional
information was provided since the July
findings, much of this information only
expanded on areas already identified in
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Federal Register / Vol. 80, No. 137 / Friday, July 17, 2015 / Notices
previous submissions. It should be
noted, however, that two workshops
involving multiple safari outfitters and
leaseholders are scheduled for the
beginning of 2015 to identify and
address outstanding issues faced by the
safari outfitters. It is the hope of the
Service that these workshops are
successful and can act as a springboard
for similar workshops throughout
Zimbabwe.
Therefore, based on the information
currently available to the Service on
government efforts to manage elephant
populations, efforts to address humanelephant conflicts and poaching, and
the state of the hunting program within
the country, and without current data
on population numbers and trends
being incorporated into a national
management strategy or plan, the
Service is unable to make a finding that
sport-hunting in Zimbabwe is
enhancing the survival of the species
and that imports of trophies would meet
the criteria established under the Act for
African elephants. The March 26, 2015,
enhancement finding has been posted at
https://www.fws.gov/international/pdf/
enhancement-finding-March-2015elephant-Zimbabwe.pdf. In addition, the
press release announcing the
suspension and frequently asked
questions is available on the Service’s
Web page (www.fws.gov/international).
This suspension does not prohibit
U.S. hunters from traveling to
Zimbabwe and participating in an
elephant hunt. The Act does not
prohibit take (e.g., hunting) outside the
United States; it only prohibits import
of trophies taken during such hunts
without authorization under the Act.
Dated: July 2, 2015.
Timothy J. Van Norman,
Chief, Branch of Permits, Division of
Management Authority, U.S. Fish and
Wildlife Service.
[FR Doc. 2015–17537 Filed 7–16–15; 8:45 am]
BILLING CODE 4310–55–P
DEPARTMENT OF THE INTERIOR
Bureau of Land Management
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[15X L1109AF LLUTC03000.161000000.
DP0000.LXSS004J0000 24–1A]
Notice of Availability of the Draft
Resource Management Plans for the
Beaver Dam Wash and Red Cliffs
National Conservation Areas; a Draft
Amendment to the St. George Field
Office Resource Management Plan;
and Draft Environmental Impact
Statement, Utah
AGENCY:
Bureau of Land Management,
Interior.
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20:59 Jul 16, 2015
Jkt 235001
ACTION:
Notice of availability.
In accordance with the
National Environmental Policy Act
(NEPA) of 1969, as amended, the
Federal Land Policy and Management
Act of 1976, as amended, and the
Omnibus Public Lands Management Act
of 2009, the Bureau of Land
Management (BLM) has prepared Draft
Resource Management Plans (RMPs) for
the Beaver Dam Wash National
Conservation Area and the Red Cliffs
National Conservation Area and a Draft
Amendment to the St. George Field
Office RMP. The three planning efforts
were initiated concurrently and are
supported by a single Environmental
Impact Statement (EIS). By this notice;
the BLM announces the opening of the
public comment period.
DATES: To ensure that comments will be
considered, the BLM must receive
written comments on the Draft RMPs/
Draft RMP Amendment and Draft EIS
within 90 days following the date that
the Environmental Protection Agency
publishes its Notice of Availability of
the Draft RMPs/Draft RMP Amendment
and Draft EIS in the Federal Register.
The BLM will announce future meetings
or hearings and any other public
participation activities at least 15 days
in advance through public notices,
media releases, and/or mailings.
ADDRESSES: You may submit comments
related to the Draft RMPs/Draft RMP
Amendment and Draft EIS by any of the
following methods:
• Email: utsgrmp@blm.gov.
• Fax: 435–688–3252.
• Mail: St. George Field Office,
Bureau of Land Management, 345 East
Riverside Drive, St. George, Utah 84790.
Copies of the Draft RMPs/Draft RMP
Amendment and Draft EIS are available
in the BLM St. George Field Office, at
the above address and the BLM Utah
State Office Public Room, 440 West 200
South, Suite 500, Salt Lake City, Utah
84101 during business hours (8:00 a.m.
to 4:30 p.m.), Monday through Friday,
except holidays. The Draft RMPs/Draft
RMP Amendment and Draft EIS is also
available on the following Web site:
https://www.blm.gov/ut/st/en/fo/
st_george.html.
FOR FURTHER INFORMATION CONTACT:
Keith Rigtrup, RMP Planner, telephone
435–865–3000; address: 345 East
Riverside Drive, St. George, Utah 84790;
email: krigtrup@blm.gov.
Persons who use a
telecommunications device for the deaf
(TDD) may call the Federal Information
Relay Service (FIRS) at 1–800–877–8339
to contact the above individual during
normal business hours. The FIRS is
SUMMARY:
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42527
available 24 hours a day, 7 days a week,
to leave a message or question with the
above individual. You will receive a
reply during normal business hours.
SUPPLEMENTARY INFORMATION: The
purpose of this planning process is to
satisfy specific mandates from the
Omnibus Public Land Management Act
of 2009 (Pub. L. 111–11, at Title 1,
Subtitle O, hereinafter OPLMA) that
directed the Secretary of the Interior,
through the BLM, to develop
comprehensive management plans for
the Beaver Dam Wash National
Conservation Area (63,480 acres of
public land) and the Red Cliffs National
Conservation Area (44,859 acres of
public land), located in Washington
County, Utah. Both National
Conservation Areas (NCAs) were
established on March 30, 2009, when
President Barack Obama signed OPLMA
into law. The decisions contained
within the Draft RMPs/Draft EIS do not
pertain to private and State lands within
the boundaries of the NCAs.
The need to amend the St. George
Field Office RMP (approved in 1999) is
also derived from OPLMA. Section 1979
(a)(1) and (2) directed the Secretary,
through the BLM, to identify areas
located in the County where biological
conservation is a priority; and undertake
activities to conserve and restore plant
and animal species and natural
communities within such areas. The
administrative designation of new areas
of critical environmental concern
(ACECs) to provide special management
attention to biological resources, as well
as the identification of priority
biological conservation areas, will
satisfy this legislative mandate, and will
be accomplished through an
amendment to the St. George Field
Office RMP.
Section 1977 (b)(1) of OPLMA,
directed the BLM to develop a
comprehensive travel management plan
for public lands in Washington County.
The St. George Field Office RMP must
be amended to modify certain existing
off-highway vehicle (OHV) area
designations (open, limited or closed),
to be in compliance with the Code of
Federal Regulations (CFR) at 43 CFR
8340.0–5, (f), (g), and (h) respectively
and 43 CFR 8342.1 (a–d) and related
agency policies, before this
comprehensive travel management plan
can be developed.
Draft RMPs for the Beaver Dam Wash
and Red Cliffs NCAs
The Draft RMPs/Draft EIS include
goals, objectives, and management
actions for conserving, protecting, and
enhancing the natural and cultural
resource values of the Beaver Dam Wash
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Agencies
[Federal Register Volume 80, Number 137 (Friday, July 17, 2015)]
[Notices]
[Pages 42524-42527]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2015-17537]
=======================================================================
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DEPARTMENT OF THE INTERIOR
Fish and Wildlife Service
[FWS-HQ-IA-2015-N077; FXIA16710900000-145-FF09A30000]
Notice of Continued Suspension of Imports of Zimbabwe Elephant
Trophies Taken On or After April 4, 2014
AGENCY: Fish and Wildlife Service, Interior.
ACTION: Notice.
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SUMMARY: On March 26, 2015, the U.S. Fish and Wildlife Service
(Service) made a determination that the suspension on the import of
sport-hunted African elephant trophies taken in Zimbabwe on or after
April 4, 2014, would be continued until further notice. The decision to
continue the suspension on importation of African elephant trophies
taken in Zimbabwe through the 2015 hunting season and future hunting
seasons is due to the Service's inability to determine that the killing
of the animal whose trophy is intended for import into the United
States would enhance the survival of the species in the wild. The
suspension on importation of trophies taken during calendar year 2015
or future hunting seasons could be lifted if additional information on
the status and management of elephants in Zimbabwe becomes available
which satisfies the conditions of the 4(d) special rule under the
Endangered Species Act (Act).
ADDRESSES: Timothy J. Van Norman, Chief, Branch of Permits, Division of
Management Authority, U.S. Fish and Wildlife Service, MS: IA, 5275
Leesburg Pike, Falls Church, VA 22041-3803; fax (703) 358-2280; or
email DMAFR@fws.gov.
FOR FURTHER INFORMATION CONTACT: Timothy J. Van Norman, (703) 358-2104
(telephone); (703) 358-2280 (fax); or DMAFR@fws.gov (email).
SUPPLEMENTARY INFORMATION: The African elephant (Loxodonta africana) is
listed as threatened under the Endangered Species Act (Act), 16 U.S.C.
1531 et seq., and is regulated under a special rule found at 50 CFR
17.40(e). The special rule includes specific requirements for the
import of sport-hunted trophies. Under paragraph 17.40(e)(3)(iii)(C),
in order for the Service to authorize the import of a sport-hunted
elephant trophy, the Service must find that the killing of the animal
whose trophy is intended for import would enhance the survival of the
species in the wild (an ``enhancement finding'').
[[Page 42525]]
Zimbabwe has had an active elephant hunting program for over 20
years, and imports into the United States have occurred at least since
1997, when the Zimbabwe elephant population, along with populations in
Botswana and Namibia, was downlisted to Appendix II of the Convention
on International Trade in Endangered Species of Wild Fauna and Flora
(CITES) (South Africa's population was downlisted at a later date).
When the population was downlisted, the Service published a notice in
the Federal Register regarding the downlisting that acknowledged that,
because elephants in Zimbabwe were an Appendix-II population, no U.S.
import permit would be required to import trophies, but we did state
that, in accordance with the special rule under the Act, the
requirement for an enhancement finding would continue to apply (62 FR
44627; August 22, 1997). In that notice, we stated that, in making the
required enhancement finding for the import of sport-hunted trophies,
the Service would review the status of the elephant population and the
total management program for elephants in each country to ensure that
the program was promoting the conservation of the species.
On April 4, 2014, the Service announced an interim suspension of
imports of sport-hunted elephant trophies taken in Zimbabwe during the
2014 season. This finding was revised on April 17, 2014, primarily to
clarify that the suspension applied only to elephants hunted on or
after April 4, 2014. This determination was announced in the Federal
Register on May 12, 2014 (79 FR 26986). The decision to establish an
interim suspension of imports of elephant trophies from Zimbabwe was
due to the Service having insufficient information on the status of
elephants in Zimbabwe and on Zimbabwe's current elephant management
program to make an enhancement finding. On July 17, 2014, the Service
found that the import of elephant trophies taken in Zimbabwe in 2014 on
or after April 4, 2014, would be suspended; this finding was revised on
July 22 to make non-substantive corrections. This determination was
announced in the Federal Register on July 31, 2014 (79 FR 44459). The
decision to uphold the suspension on July 17, 2014, was due to the
Service being unable to make an enhancement finding even after
receiving additional materials from Zimbabwe's Parks and Wildlife
Management Authority (ZPWMA) and others. The Service decided on March
26, 2015, to continue the July 2014 suspension until such time as the
Service can determine that the importation of sport-hunted elephant
trophies from Zimbabwe meet the criteria under the regulations at 50
CFR 17.40(e)(3)(iii)(C). The Service's March 26, 2015, decision was
again due to the Service being unable to make an enhancement finding
even after receiving additional materials from Zimbabwe's Parks and
Wildlife Management Authority (ZPWMA) and others.
Prior to April 4, 2014, the Service had limited information
regarding the elephant population in Zimbabwe, its management, and how
U.S. hunters were contributing to the enhancement of the species within
Zimbabwe. Due to this limited information, the Service determined that
it did not have sufficient information to make the required
determination under paragraph 17.40(e)(3)(iii)(C), and therefore
announced an interim suspension on April 4, 2015 (revised on April 17),
until such time as sufficient information was obtained that would allow
the Service to make the required finding. On April 4, 2014, the Service
also sent a letter to Zimbabwe requesting information regarding the
status of elephants in Zimbabwe and the hunting program. On April 17,
2014, the Director-General of ZPWMA sent a response to the Service
inquiry. Several weeks later, the Service received a number of
documents, copies of Zimbabwean laws, and other supporting
documentation that was referenced in the ZPWMA response. In addition,
since that time, the Service has received additional supporting
information from individuals and associations connected to the hunting
industry in Zimbabwe or southern Africa and U.S.-based conservation and
hunting nongovernmental organizations (NGOs). The Service also
delivered a second letter, dated October 31, 2014, to ZPWMA while
attending the 13th Annual African Wildlife Consultative Forum in
Ethiopia. This letter requested clarification of information submitted
to the Service, and also requested additional information to address
questions that were raised from our review of available information.
The Service received a response to this inquiry on December 10, 2014.
Based on the information provided, Zimbabwe's current national
elephant management plan consists primarily of two documents: The
Policy and Plan for Elephant Management in Zimbabwe (1997) and Elephant
Management in Zimbabwe, third edition (July 1996). Although the
documents provide a well-developed list of goals and objectives, there
is no information in these documents on how to achieve or fulfill these
goals and objectives, nor do there appear to be any subsequent updates
of the documents or reports that provide any indication of progress on
fulfilling these management goals and objectives. Without management
plans with specific goals and actions that are measurable and reports
on the progress of meeting these goals, the Service cannot determine if
ZPWMA is implementing the general goals and objectives that appear in
Elephant Management in Zimbabwe and The Policy and Plan for Elephant
Management in Zimbabwe. In December 2014, a workshop, hosted by ZPWMA,
was held at the Hwange Safari Lodge, Zimbabwe, to discuss revisions to
the management plans, particularly to establish clearer goals and
measurable outcomes. It appears that the participants of the workshop
agreed on a framework for a revised management plan that maintained the
original 1997 long-term vision and the three target goals (i.e.,
maintain at least four demographically and genetically viable
populations; maintain or increase elephant range; maintain numbers/
densities of elephants at levels that do not adversely impact
biodiversity conservation goals while contributing to economically
viable and sustainable wildlife-based land uses). The participants also
began work on identifying strategic objectives and outputs, as well as
recognizing some key activities, and starting to identify key
performance indicators. Additional work is required to finalize the
revised management plan. Once this work is completed, the Service will
have an opportunity to evaluate the revised plan to determine if, in
conjunction with other management actions, the criteria under 50 CFR
17.40(e)(3)(iii)(C) have been met. However, based on the information
available to the Service, there is not currently any information
indicating that Zimbabwe is implementing, on a national scale,
appropriate management measures for its elephant populations.
One concern expressed in the April 2014 and July 2014 findings was
whether management of elephants in Zimbabwe was based on accurate
population estimates. According to the IUCN SSC African Elephant
Database report 2013 Africa, the elephant population in Zimbabwe in
2007 was estimated to be 99,107, and in 2012, it was estimated at
100,291. However, these estimates were primarily based on older
surveys, some of which dated back to 2001. In 2014, a nationwide survey
was conducted in Zimbabwe as part of the Pan African Elephant Aerial
Survey.
[[Page 42526]]
Preliminary results from the survey indicate that the overall estimated
population of elephants in Zimbabwe was 82,000 to 83,000, approximately
20 percent lower than the 2012 estimate. There was an increase in two
of the subpopulations within Zimbabwe (North West Matabeleland Region--
2001 estimate of 49,312 elephants, and 2014 estimate of 53,949;
Gonarezhou National Park--2013 estimate of 10,151 elephants, and 2014
estimate of 10,722), but a decline in the other two subpopulations (Mid
Zambezi Valley--2014 estimate of 12,211 elephants, down from 19,297 in
2001; Sebungwe Region--2014 estimate of 3,634, compared to 13,988 in
2001). With the recent survey, ZPWMA should have more accurate
population estimates for each subpopulation to establish appropriate
off-take levels to maintain a healthy population of elephants.
According to information provided to the Service, Zimbabwe has a
methodology, including participation from a number of stakeholders, for
establishing annual hunting quotas for all areas of the country.
However, while the described methodology appears to be based on sound
wildlife management principles, the Service continues to have
fundamental questions regarding how quotas are specifically established
and how overall off-take, such as poaching and problem animal control,
were taken into account, or to what degree biological factors are taken
into consideration (as opposed to economic and societal
considerations). The current quota setting process utilized by ZPWMA
may take into consideration the issues raised in the Service's finding;
however, without documentation of the system providing an explanation
of the system used and describing the calculations, the Service cannot
determine if sport-hunting quotas are reasonable or beneficial to
elephant populations and, therefore, whether sport-hunting is enhancing
the survival of the species.
The Zimbabwean Parks and Wild Life Act has established the
regulatory mechanism for the ZPWMA and its programs, and also provides
for substantial penalties for the unlawful possession of or trading in
ivory. In addition, the General Laws Amendment Act (No. 5) of 2010
provides for mandatory imprisonment of not less than 9 years for
poaching. If properly enforced, it appears these penalties would be a
sufficient deterrent for poachers. However, based on the information
available to the Service, we do not have a good understanding of the
ZPWMA's annual operational budget, how much money is generated by
elephant hunting, or how these funding levels impact the ability of
ZPWMA to adequately implement the Parks and Wild Life Act or to carry
out day-to-day management activities or anti-poaching efforts. In
January 1996, the Government of Zimbabwe approved the establishment of
the Parks and Wild Life Conservation Fund, a statutory fund responsible
for financing operations directly from wildlife revenues. However,
revenues generated through sport-hunting conducted on State and private
lands are primarily used to finance ZPWMA, and only limited additional
funding is available from appropriated funds from the Zimbabwe
government or outside funding from NGOs. While the Service did receive
additional information from ZPWMA and other sources on the revenue
generated through hunting (in general) and other sources (in general),
we still lack sufficient information on revenue generated through
elephant hunting, particularly from U.S. hunters. It is possible that
additional documentation could be provided to substantiate claims that
revenue from U.S. hunters generated through elephant hunting provides a
significant benefit to elephants in the wild, but until such time, we
are unable to determine if these claims are accurate.
In 1989, Zimbabwe established the Communal Areas Management
Programme for Indigenous Resources (CAMPFIRE) to encourage reduction in
human-elephant conflicts through conservation-based community
development and to provide an economic incentive to improve community
tolerance of wildlife, including elephants. In the past, the CAMPFIRE
program has been the model for community-based conservation efforts in
several other African countries and was identified as an innovative
program. Under a community-based conservation program, like CAMPFIRE,
rural communities should benefit from revenue generated by sport-
hunting. With increased human-elephant conflicts on Communal lands,
sport-hunting may be an important tool that gives these communities a
stake in sustainable management of the elephant as a natural and
economic resource and provides the enhancement that would meet the U.S.
criteria for authorizing imports of trophies. Much of the information
provided to the Service over the past year focused on the benefits U.S.
hunters provided to CAMPFIRE activities and community-based wildlife
management. However, the information did not provide a clear connection
between hunting revenues coming from U.S. hunters (e.g., how much is
generated for communities), and indicated that over time, the
management of wildlife and benefits provided through CAMPFIRE may have
declined. It appears that these concerns were expressed during the
November 2014 CAMPFIRE Stakeholder's Workshop held in Zimbabwe. The
discussions and recommendations touched on the effectiveness of the
CAMPFIRE concept and its relationship to tourist hunting. Participants
at the workshop appeared to have made a good start at addressing issues
raised by representatives of Rural Development Councils (RDCs), as well
as the need for CAMPFIRE to face challenges with limited resources and
capacity. It was recognized that there needed to be strong involvement
with ZPWMA and safari operators since CAMPFIRE is in areas where there
have been both elephant population declines and increased poaching.
While the Service's concerns expressed in our earlier findings
regarding community-based wildlife management have not been
sufficiently addressed in the information provided to the Service to
date, there does appear to be movement in better defining the role that
CAMPFIRE and community-based wildlife management can play in elephant
management, particularly in association with U.S. hunters.
As was stated in the July 2014 and March 26, 2015, findings, there
are clearly ``bright spots'' of elephant conservation efforts being
carried out by non-governmental entities and individuals in Zimbabwe
that are providing a benefit to elephants. Individual safari outfitters
and landowners have established their own management efforts, including
anti-poaching activities, on areas under their control, either through
ownership of the land or leases. These entities have made significant
strides to ensure the long-term survival of elephants on their lands.
These efforts, however, have been adversely affected by unilateral or
seemingly arbitrary actions taken by the central government or RDC,
such as land redistribution activities, which minimize conservation
efforts, and reduced lease durations. These ``bright spots'' are not
numerous enough, in and of themselves, to overcome the problems
currently facing Zimbabwe elephant populations or to support a finding
that sport hunting throughout Zimbabwe would enhance the survival of
the species. While additional information was provided since the July
findings, much of this information only expanded on areas already
identified in
[[Page 42527]]
previous submissions. It should be noted, however, that two workshops
involving multiple safari outfitters and leaseholders are scheduled for
the beginning of 2015 to identify and address outstanding issues faced
by the safari outfitters. It is the hope of the Service that these
workshops are successful and can act as a springboard for similar
workshops throughout Zimbabwe.
Therefore, based on the information currently available to the
Service on government efforts to manage elephant populations, efforts
to address human-elephant conflicts and poaching, and the state of the
hunting program within the country, and without current data on
population numbers and trends being incorporated into a national
management strategy or plan, the Service is unable to make a finding
that sport-hunting in Zimbabwe is enhancing the survival of the species
and that imports of trophies would meet the criteria established under
the Act for African elephants. The March 26, 2015, enhancement finding
has been posted at https://www.fws.gov/international/pdf/enhancement-finding-March-2015-elephant-Zimbabwe.pdf. In addition, the press
release announcing the suspension and frequently asked questions is
available on the Service's Web page (www.fws.gov/international).
This suspension does not prohibit U.S. hunters from traveling to
Zimbabwe and participating in an elephant hunt. The Act does not
prohibit take (e.g., hunting) outside the United States; it only
prohibits import of trophies taken during such hunts without
authorization under the Act.
Dated: July 2, 2015.
Timothy J. Van Norman,
Chief, Branch of Permits, Division of Management Authority, U.S. Fish
and Wildlife Service.
[FR Doc. 2015-17537 Filed 7-16-15; 8:45 am]
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