Notice of Continued Suspension of Imports of Zimbabwe Elephant Trophies Taken On or After April 4, 2014, 42524-42527 [2015-17537]

Download as PDF 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 Management Agency, DHS. Federal Property Suitable as Facilities To Assist the Homeless AGENCY: ACTION: Notice. Effective date: June 17, 2015. Dean Webster, Office of Response and Recovery, Federal Emergency Management Agency, 500 C Street SW., Washington, DC 20472, (202) 646–2833. The notice of a major disaster declaration for the State of Oklahoma is hereby amended to include the following areas among those areas determined to have been adversely affected by the event declared a major disaster by the President in his declaration of May 26, 2015. srobinson on DSK5SPTVN1PROD with NOTICES SUPPLEMENTARY INFORMATION: Rogers County for Individual Assistance. Choctaw, Cotton, and Tillman Counties for Individual Assistance (already designated for Public Assistance). Craig, Custer, Dewey, Grant, Jefferson, Kay, Kingfisher, Major, Noble, Ottawa, and Roger Mills Counties for Public Assistance. Kiowa, Oklahoma, and Wagoner Counties for Public Assistance (already designated for Individual Assistance). The following Catalog of Federal Domestic Assistance Numbers (CFDA) are to be used for reporting and drawing funds: 97.030, Community Disaster Loans; 97.031, Cora Brown Fund; 97.032, Crisis Counseling; 97.033, Disaster Legal Services; 97.034, Disaster Unemployment Assistance (DUA); 97.046, Fire Management Assistance Grant; 97.048, Disaster Housing Assistance to Individuals and Households In Presidentially Declared Disaster Areas; 97.049, Presidentially Declared Disaster Assistance— Disaster Housing Operations for Individuals and Households; 97.050 Presidentially Declared Disaster Assistance to Individuals and Households—Other Needs; 97.036, Disaster Grants—Public Assistance 20:59 Jul 16, 2015 Jkt 235001 Notice. This Notice identifies unutilized, underutilized, excess, and surplus Federal property reviewed by HUD for suitability for possible use to assist the homeless. FOR FURTHER INFORMATION CONTACT: VerDate Sep<11>2014 ACTION: SUMMARY: May 26, 2015, and related determinations. DATES: DATES: Office of the Assistant Secretary for Community Planning and Development, HUD. 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 Street SW., Room 7262, Washington, DC 20410; telephone (202) 402–3970; TTY number for the hearing- and speechimpaired (202) 708–2565, (these telephone numbers are not toll-free), or call the toll-free Title V information line at 800–927–7588. In accordance with the December 12, 1988 court order in National Coalition for the Homeless v. Veterans Administration, No. 88–2503–OG (D.D.C.), HUD publishes a Notice, on a weekly basis, identifying unutilized, underutilized, excess and surplus Federal buildings and real property that HUD has reviewed for suitability for use to assist the homeless. Today’s Notice is for the purpose of announcing that no additional properties have been determined suitable or unsuitable this week. 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] BILLING CODE 4210–67–P PO 00000 Frm 00058 Fmt 4703 Sfmt 4703 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’’). E:\FR\FM\17JYN1.SGM 17JYN1 srobinson on DSK5SPTVN1PROD with NOTICES 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 VerDate Sep<11>2014 20:59 Jul 16, 2015 Jkt 235001 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 PO 00000 Frm 00059 Fmt 4703 Sfmt 4703 42525 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. E:\FR\FM\17JYN1.SGM 17JYN1 srobinson on DSK5SPTVN1PROD with NOTICES 42526 Federal Register / Vol. 80, No. 137 / Friday, July 17, 2015 / Notices 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 VerDate Sep<11>2014 20:59 Jul 16, 2015 Jkt 235001 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 PO 00000 Frm 00060 Fmt 4703 Sfmt 4703 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 E:\FR\FM\17JYN1.SGM 17JYN1 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 srobinson on DSK5SPTVN1PROD with NOTICES [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. VerDate Sep<11>2014 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: PO 00000 Frm 00061 Fmt 4703 Sfmt 4703 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 E:\FR\FM\17JYN1.SGM 17JYN1

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]
BILLING CODE 4310-55-P
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