Migratory Bird Hunting; Proposed Frameworks for Migratory Bird Hunting Regulations, 77087-77122 [2015-31169]

Agencies

• Fish and Wildlife Service
• DEPARTMENT OF THE INTERIOR

[Federal Register Volume 80, Number 238 (Friday, December 11, 2015)]
[Proposed Rules]
[Pages 77087-77122]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2015-31169]



[[Page 77087]]

Vol. 80

Friday,

No. 238

December 11, 2015

Part II





Department of the Interior





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 Fish and Wildlife Service





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50 CFR Part 20





 Migratory Bird Hunting; Proposed Frameworks for Migratory Bird Hunting 
Regulations; Proposed Rule

Federal Register / Vol. 80 , No. 238 / Friday, December 11, 2015 / 
Proposed Rules

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DEPARTMENT OF THE INTERIOR

Fish and Wildlife Service

50 CFR Part 20

[Docket No. FWS-HQ-MB-2015-0034; FF09M21200-167-FXMB1231099BPP0]
RIN 1018-BA70


Migratory Bird Hunting; Proposed Frameworks for Migratory Bird 
Hunting Regulations

AGENCY: Fish and Wildlife Service, Interior.

ACTION: Proposed rule; supplemental.

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SUMMARY: The U.S. Fish and Wildlife Service (hereinafter Service or we) 
is proposing to establish the 2016-17 hunting regulations for certain 
migratory game birds. We annually prescribe frameworks, or outer 
limits, for dates and times when hunting may occur and the number of 
birds that may be taken and possessed in hunting seasons. These 
frameworks are necessary to allow State selections of seasons and 
limits and to allow recreational harvest at levels compatible with 
population and habitat conditions.

DATES: You must submit comments on the proposed migratory bird hunting 
frameworks by January 11, 2016.

ADDRESSES: Comments: You may submit comments on the proposals by one of 
the following methods:
     Federal eRulemaking Portal: https://www.regulations.gov. 
Follow the instructions for submitting comments on Docket No. FWS-HQ-
MB-2015-0034.
     U.S. mail or hand delivery: Public Comments Processing, 
Attn: FWS-HQ-MB-2015-0034; Division of Policy, Performance, and 
Management Programs; U.S. Fish and Wildlife Service; MS: BPHC; 5275 
Leesburg Pike; Falls Church, VA 22041-3803.
    We will post all comments on https://www.regulations.gov. This 
generally means that we will post any personal information you provide 
us (see the Review of Public Comments and Flyway Council 
Recommendations section, below, for more information).

FOR FURTHER INFORMATION CONTACT: Ron W. Kokel, U.S. Fish and Wildlife 
Service, Department of the Interior, MS: MB, 5275 Leesburg Pike, Falls 
Church, VA 22041-3803; (703) 358-1967.

SUPPLEMENTARY INFORMATION: As part of DOI's retrospective regulatory 
review, we developed a schedule for migratory game bird hunting 
regulations that is more efficient and will provide dates much earlier 
than was possible under the old process. This will facilitate planning 
for the States and all parties interested in migratory bird hunting. 
Beginning with the 2016-17 hunting season, we are using a new schedule 
for establishing our annual migratory game bird hunting regulations. We 
will combine the current early- and late-season regulatory actions into 
a single process, based on predictions derived from long-term 
biological information and harvest strategies, to establish migratory 
bird hunting seasons much earlier than the system we have used for many 
years. Under the new process, we will develop proposed hunting season 
frameworks for a given year in the fall of the prior year. We will 
finalize those frameworks a few months later, thereby enabling the 
State agencies to select and publish their season dates in early 
summer.

Regulations Schedule for 2016

    On August 6, 2015, we published in the Federal Register (80 FR 
47388) a proposal to amend 50 CFR part 20. The proposal provided a 
background and overview of the migratory bird hunting regulations 
process, and addressed the establishment of seasons, limits, and other 
regulations for hunting migratory game birds under Sec. Sec.  20.101 
through 20.107, 20.109, and 20.110 of subpart K. Major steps in the 
2016-17 regulatory cycle relating to open public meetings and Federal 
Register notifications were also identified in the August 6, 2015, 
proposed rule. Further, we explained that all sections of subsequent 
documents outlining hunting frameworks and guidelines were organized 
under numbered headings. Those headings are:

1. Ducks
    A. General Harvest Strategy
    B. Regulatory Alternatives
    C. Zones and Split Seasons
    D. Special Seasons/Species Management
    i. September Teal Seasons
    ii. September Teal/Wood Duck Seasons
    iii. Black ducks
    iv. Canvasbacks
    v. Pintails
    vi. Scaup
    vii. Mottled ducks
    viii. Wood ducks
    ix. Youth Hunt
    x. Mallard Management Units
    xi. Other
2. Sea Ducks
3. Mergansers
4. Canada Geese
    A. Special Seasons
    B. Regular Seasons
    C. Special Late Seasons
5. White-fronted Geese
6. Brant
7. Snow and Ross's (Light) Geese
8. Swans
9. Sandhill Cranes
10. Coots
11. Moorhens and Gallinules
12. Rails
13. Snipe
14. Woodcock
15. Band-tailed Pigeons
16. Doves
17. Alaska
18. Hawaii
19. Puerto Rico
20. Virgin Islands
21. Falconry
22. Other

    Subsequent documents will refer only to numbered items requiring 
attention. Therefore, it is important to note that we will omit those 
items requiring no attention, and remaining numbered items will be 
discontinuous and appear incomplete.
    The August 6 proposed rule also provided detailed information on 
the proposed 2016-17 regulatory schedule and announced the Service 
Regulations Committee (SRC) and Flyway Council meetings.
    On October 20-21, 2015, we held open meetings with the Flyway 
Council Consultants, at which the participants reviewed information on 
the current status of migratory game birds and developed 
recommendations for the 2016-17 regulations for these species.
    This document deals specifically with proposed frameworks for the 
migratory bird hunting regulations. It will lead to final frameworks 
from which States may select season dates, shooting hours, areas, and 
limits.
    We have considered all pertinent comments received through October 
23, 2015, on the August 6, 2015, proposed rulemaking document in 
developing this document. In addition, new proposals for certain 
regulations are provided for public comment. The comment period is 
specified above under DATES. We will publish final regulatory 
frameworks for migratory game bird hunting in the Federal Register on 
or around February 28, 2016.

Population Status and Harvest

    The following paragraphs provide information on the status and 
harvest of migratory game birds excerpted from various reports. Due to 
the overlapping nature this first year of the new regulatory process 
for establishing the annual migratory game bird hunting regulations, 
most all of this information was previously reported in the July 21, 
2015, and August 25, 2015, proposed rules for the 2015-16 migratory 
game bird hunting seasons (80 FR 43266 and 80 FR 51658). However, as an 
aid to the reader, we are providing it again here. We are also 
providing updated status information for the Mid-Continent

[[Page 77089]]

Population of sandhill cranes from the March, 2015 surveys.
    For more detailed information on methodologies and results, you may 
obtain complete copies of the various reports at the address indicated 
under FOR FURTHER INFORMATION CONTACT or from our Web site at https://www.fws.gov/migratorybirds/NewsPublicationsReports.html.

Waterfowl Breeding Population and Habitat Survey

    Federal, provincial, and State agencies conduct surveys each spring 
to estimate the size of breeding populations and to evaluate habitat 
conditions. These surveys are conducted using fixed-wing aircraft, 
helicopters, and ground crews and encompass principal breeding areas of 
North America, covering an area over 2.0 million square miles. The 
traditional survey area comprises Alaska, western Canada, and the north 
central United States, and includes approximately 1.3 million square 
miles. The eastern survey area includes parts of Ontario, Quebec, 
Labrador, Newfoundland, Nova Scotia, Prince Edward Island, New 
Brunswick, New York, and Maine, an area of approximately 0.7 million 
square miles.
    Despite an early spring over most of the survey area, habitat 
conditions during the 2015 Waterfowl Breeding Population and Habitat 
Survey (WBPHS) were similar to or poorer than last year. With the 
exception of portions of southern Saskatchewan and central latitudes of 
eastern Canada, in many areas the decline in habitat conditions was due 
to average to below-average annual precipitation. The total pond 
estimate (Prairie Canada and United States combined) was 6.3  0.2 million, which was 12 percent below the 2014 estimate of 7.2 
 0.2 million but 21 percent above the long-term average of 
5.2  0.03 million. The 2015 estimate of ponds in Prairie 
Canada was 4.2  0.1 million. This estimate was 10 percent 
below the 2014 estimate of 4.6  0.2 million but 19 percent 
above the long-term average (3.5  0.02 million). The 2015 
pond estimate for the north central United States was 2.2  
0.09 million, which was 16 percent below the 2014 estimate of 2.6 
 0.1 million and 28 percent above the long-term average 
(1.7  0.02 million).
    Additional details of the 2015 Survey were provided in the July 21, 
2015, Federal Register and are available from our Web site at https://www.fws.gov/migratorybirds.

Breeding Population Status

    In the traditional survey area, which includes strata 1-18, 20-50, 
and 75-77, the total duck population estimate (excluding scoters 
[Melanitta spp.], eiders [Somateria spp. and Polysticta stelleri], 
long-tailed ducks [Clangula hyemalis], mergansers [Mergus spp. and 
Lophodytes cucullatus], and wood ducks [Aix sponsa]) was 49.5  0.8 [SE] million birds. This estimate is similar to the 2014 
estimate of 49.2  0.8 million, and is 43 percent higher 
than the long-term average (1955-2014). This year also marks the 
highest estimates in the time series for mallards (Anas platyrhynchos) 
and green-winged teal (A. crecca). Estimated mallard abundance was 11.6 
 0.4 million, which was similar to the 2014 estimate of 
10.9  0.3 million, and 51 percent above the long-term 
average of 7.7  0.04 million. Estimated abundance of 
gadwall (A. strepera; 3.8  0.2 million) and American wigeon 
(A. americana; 3.0  0.2 million) were similar to last 
year's estimates, and were 100 percent and 17 percent above their long-
term averages of 1.9  0.02 million and 2.6  
0.02 million, respectively. The estimated abundance of green-winged 
teal was 4.1  0.3 million, which was 19 percent above the 
2014 estimate of 3.4  0.2 million and 98 percent above the 
long-term average (2.1  0.02 million). Estimated blue-
winged teal (A. discors; 8.5  0.4 million) abundance was 
similar to the 2014 estimate, and 73 percent above the long-term 
average of 4.9  0.04 million.
Estimated Abundance of Northern Shovelers
    (A. clypeata; 4.4  0.2 million) was 17 percent below 
the 2014 estimate but 75 percent above the long-term average of 2.5 
 0.02 million. Northern pintail abundance (A. acuta; 3.0 
 0.2 million) was similar to the 2014 estimate and 24 
percent below the long-term average of 4.0  0.04 million. 
Abundance estimates for redheads (Aythya americana; 1.2  
0.1 million) and canvasbacks (A. valisineria; 0.8  0.06 
million) were similar to their 2014 estimates and were 71 percent and 
30 percent above their long-term averages of 0.7  0.01 
million and 0.6  0.01 million, respectively. Estimated 
abundance of scaup (A. affinis and A. marila combined; 4.4  
0.3 million) was similar to the 2014 estimate and 13 percent below the 
long-term average of 5.0  0.05 million.
    The eastern survey area was restratified in 2005, and is now 
composed of strata 51-72. In the eastern survey area, estimated 
abundance of American black ducks (Anas rubripes) was 0.5  
.04 million, which was 11 percent below last year's estimate and 13 
percent below the 1990-2014 average. The estimated abundance of 
mallards (0.4  0.1 million) and mergansers (0.4  0.04 million) were similar to the 2014 estimates and their 1990-
2014 averages. Abundance estimates of green-winged teal (0.2  0.04 million) and goldeneyes (common and Barrow's [Bucephala 
clangula and B. islandica], 0.4  0.4 million) were similar 
to their 2014 estimates, and were 14 percent and 15 percent below their 
1990-2014 averages of 0.3  0.04 million and 0.4  0.07 million, respectively. The abundance estimate of ring-
necked ducks (Aythya collaris, 0.5  0.07 million) was 
similar to the 2014 estimate and the 1990-2014 average.

Status of Geese and Swans

    We provide information on the population status and productivity of 
North American Canada geese (Branta canadensis), brant (B. bernicla), 
snow geese (Chen caerulescens), Ross's geese (C. rossii), emperor geese 
(C. canagica), white-fronted geese (Anser albifrons), and tundra swans 
(Cygnus columbianus). Production of arctic-nesting geese depends 
heavily upon the timing of snow and ice melt, and spring and early-
summer temperatures.
    In 2015, conditions in the Arctic and boreal areas important for 
geese were variable. Compared to last year, snow and ice conditions 
were less extensive in the western Arctic, more extensive in the 
central Arctic, and similar in the eastern Arctic. Breeding conditions 
were good on Bylot Island in the eastern Arctic, and an average to 
above-average fall flight was expected for greater snow geese. 
Biologists reported later-than-average spring phenology at Southampton 
Island, the northern and western coastal areas of the Hudson Bay, and 
the southern portion of Baffin Island. Atlantic brant have had 3 years 
of low production, and below-average production was expected again this 
year. Habitat conditions across Atlantic Canada were generally good, 
except for a more persistent spring snow pack and ice coverage in 
higher elevation areas in Newfoundland and Labrador. Nesting conditions 
were below average on the Ungava Peninsula, and lakes and ponds along 
the eastern Hudson Bay coast remained frozen in mid-June. North 
Atlantic Population and Atlantic Population Canada goose numbers were 
similar to recent averages, and average fall flights were expected. Of 
the Canada goose populations that migrate through the Mississippi 
Flyway, Eastern Prairie Population numbers were similar to last year, 
and average to above-average production was expected; Southern James 
Bay Population and Mississippi Valley Population breeding numbers were 
down relative to recent years, with

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average and below-average fall flights predicted, respectively. Ice 
breakup and nesting phenology in the Queen Maud Gulf region of the 
central Arctic were similar to long-term averages, and nesting 
conditions and habitat were good to above average in the western Arctic 
and Northwest Territories. Thus, average to above-average production 
was expected for Ross's, mid-continent snow, mid-continent white-
fronted, and lesser and Central Flyway Arctic nesting Canada geese.
    Alaska experienced an early spring and mild breakup of ice with 
minimal flooding on the Yukon-Kuskokwim Delta and other interior areas 
of the State. With less persistent ice and snow cover and favorable 
breeding conditions in the western Arctic and Alaska, the outlook for 
goose and swan populations nesting in these areas was good to 
excellent. With the exception of cackling Canada geese, indices for 
geese and swans that breed on the Yukon-Kuskokwim Delta were lower this 
year compared to last year, though later survey timing relative to the 
early spring conditions may have contributed to lower counts. Record 
high counts were observed this year for the Wrangel Island Population 
of lesser snow geese and dusky Canada geese, and the spring index for 
emperor geese was the highest recorded in over three decades.
    Across much of the Canadian and U.S. prairies, spring phenology was 
early. Habitat conditions were generally rated good to fair on the 
Canadian prairies and fair to poor on the U.S. prairies. Southern and 
central portions of the western United States were exceptionally dry, 
and habitat conditions there were generally poor. However, production 
of temperate-nesting Canada geese over most of their North American 
range is expected to be average, and similar to previous years.
    Of the 28 goose and swan populations included in the report, 6 had 
significant positive trends during the most recent 10-year period (P < 
0.05): Western Prairie and Great Plains Population, dusky, and Aleutian 
Canada geese; and mid-continent, Western Central Flyway, and Western 
Arctic and Wrangel Island light geese. Three populations, Atlantic 
brant, and the Atlantic and Southern James Bay Populations of Canada 
geese, showed a statistically significant negative 10-year trend. Of 
the 13 populations for which primary indices included variance 
estimates, Ross's geese statistically significantly increased and 2 
populations statistically significantly decreased (Southern James Bay 
Population and Mississippi Valley Population Canada geese) in 2015 
compared to 2014. Of the 15 populations for which primary indices did 
not include variance estimates, 8 populations were higher than last 
year, and 7 populations were lower.

Waterfowl Harvest and Hunter Activity

    National surveys of migratory bird hunters were conducted during 
the 2013-14 and 2014-15 hunting seasons. More than 1 million waterfowl 
hunters harvested 13,716,400 ( 6 percent) ducks and 
3,360,400 ( 6 percent) geese in 2013, and more than 1 
million waterfowl hunters harvested 13,267,800 ( 4 percent) 
ducks and 3,321,100 ( 11 percent) geese in 2014. Mallard, 
green-winged teal, gadwall, blue-winged/cinnamon teal, and wood duck 
(Aix sponsa) were the five most-harvested duck species in the United 
States, and Canada goose was the predominant goose species in the goose 
harvest.

Sandhill Cranes

    The annual indices to abundance of the Mid-Continent Population 
(MCP) of sandhill cranes (Grus canadensis) have been relatively stable 
since 1982, but have shown more inter-annual variability in recent 
years. The spring 2015 estimate of sandhill cranes in the Central 
Platte River Valley (CPRV), Nebraska, was 452,616 birds. This estimate 
is 31 percent lower than the estimate from March 2014. The 3-year 
average for photo-corrected counts (which are more accurate than ocular 
estimates because they account for birds present but not seen by aerial 
crews) for 2013-15 was 623,812, which is above the established 
population-objective range of 349,000- 472,000 cranes. All Central 
Flyway States, except Nebraska, allowed crane hunting in portions of 
their States during 2014-15. An estimated 7,825 Central Flyway hunters 
participated in these seasons, which was 24 percent lower than the 
number that participated in the previous season. Hunters harvested 
15,776 MCP cranes in the U.S. portion of the Central Flyway during the 
2014-15 seasons, which was 27 percent lower than the harvest for the 
previous year but 6 percent higher than the long-term average. The 
retrieved harvest of MCP cranes in hunt areas outside of the Central 
Flyway (Arizona, Pacific Flyway portion of New Mexico, Minnesota, 
Alaska, Canada, and Mexico combined) was 13,221 during 2014-15. The 
preliminary estimate for the North American MCP sport harvest, 
including crippling losses, was 32,666 birds, which was a 19 percent 
decrease from the previous year's estimate. The long-term (1982-2012) 
trends for the MCP indicate that harvest has been increasing at a 
higher rate than population growth.
    The fall 2014 pre-migration survey for the Rocky Mountain 
Population (RMP) resulted in a count of 19,668 cranes. The 3-year 
average was 18,482 sandhill cranes, which is within the established 
population objective of 17,000-21,000 for the RMP. Hunting seasons 
during 2014-15 in portions of Arizona, Idaho, Montana, New Mexico, 
Utah, and Wyoming resulted in a harvest of 624 RMP cranes, an 8 percent 
decrease from the previous year's harvest.
    The Eastern Population (EP) sandhill crane fall survey index 
(83,479) increased by 30 percent in 2014, and a combined total of 401 
cranes were harvested in Kentucky's fourth hunting season and 
Tennessee's second season.

Woodcock

    The American woodcock (Scolopax minor) is managed as two management 
regions, the Eastern and the Central. Singing Ground and Wing-
collection Surveys are conducted to assess population status. The 
Singing Ground Survey is intended to measure long-term changes in 
woodcock population levels.
    Singing Ground Survey data for 2015 indicate that the number of 
singing male woodcock per route in the Eastern and Central Management 
Regions was unchanged from 2014. There was a statistically significant, 
declining 10-year trend in woodcock heard for the Eastern Management 
Region during 2005-15, while the 10-year trend in the Central 
Management Region was not significant. This marks the second year in a 
row that the 10-year trend in the Eastern Management Region has shown a 
decline. Both management regions have a long-term (1968-2015) declining 
trend (-1.1 percent per year in the Eastern Management Region and -0.7 
percent per year in the Central Management Region).
    The Wing-collection Survey provides an index to recruitment. Wing-
collection Survey data indicate that the 2014 recruitment index for the 
U.S. portion of the Eastern Region (1.49 immatures per adult female) 
was 6.9 percent less than the 2013 index, and 8.9 percent less than the 
long-term (1963-2013) average. The recruitment index for the U.S. 
portion of the Central Region (1.39 immatures per adult female) was 9.7 
percent less than the 2013 index and 10.6 percent less than the long-
term (1963-2013) average.
    During the 2014-15 seasons, hunters in the Eastern Region harvested 
58,600 birds, which was 6.2 percent below the number for the previous 
season and 31.4 percent below the long-term (1999-2013) average. In the 
Central Region, 141,500 woodcock were harvested, 21.4

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percent less than in 2013 and 36.5 percent less than the long-term 
average.

Band-Tailed Pigeons

    Two subspecies of band-tailed pigeon (Columba fasciata) occur north 
of Mexico, and are managed as two separate populations: Interior and 
Pacific Coast. Information on the abundance and harvest of band-tailed 
pigeons is collected annually in the United States and British 
Columbia. Abundance information comes from the Breeding Bird Survey 
(BBS) and the Mineral Site Survey (MSS, specific to the Pacific Coast 
Population). Harvest and hunter participation are estimated from the 
Migratory Bird Harvest Information Program (HIP).
    The BBS provided evidence that the abundance of Pacific Coast band-
tailed pigeons decreased (-1.8 percent per year) over the long term 
(1968-2014). No trends in abundance were evident during the recent 10- 
and 5-year periods for both the BBS and MSS. Harvest estimates indicate 
that 2,900 active hunters took 12,000 pigeons and spent 8,800 days 
afield in 2014. Composition of harvest was 25 percent hatching-year 
pigeons.
    For Interior band-tailed pigeons, the BBS provided evidence that 
abundance decreased (-5.5 percent per year) over the long term (1968-
2014). Similar to Pacific Coast birds, no trends in abundance were 
evident during the recent 10- and 5-year periods. An estimated 1,500 
hunters harvested 1,500 pigeons and spent 3,300 days afield in 2014.

Mourning Doves

    Doves in the United States are managed in three management units, 
Eastern (EMU), Central (CMU), and Western (WMU). We annually summarize 
information collected in the United States on survival, recruitment, 
abundance, and harvest of mourning doves (Zenaida macroura). We report 
on trends in the number of doves heard and seen per route from the all-
bird BBS, and provide absolute abundance estimates based on band 
recovery and harvest data. Harvest and hunter participation are 
estimated from the HIP.
    BBS data suggested that the abundance of mourning doves over the 
last 49 years increased in the Eastern Management Unit (EMU) and 
decreased in the Central (CMU) and Western (WMU) Management Units. 
Estimates of absolute abundance are available only since 2003 and 
indicate that there are about 274 million doves in the United States. 
Predicted abundances for 2015 (and lower 70 percent credible intervals 
[CI]) are 79.3 million birds (64.3) for the EMU, 139.5 million (124.3) 
for the CMU, and 52.6 million (45.0) for the WMU.
    Current (2014) HIP estimates for mourning dove total harvest, 
active hunters, and total days afield in the United States were 
13,809,500 birds, 839,600 hunters, and 2,386,700 days afield. Harvest 
and hunter participation at the unit level were: EMU, 4,889,800 birds, 
310,200 hunters, and 791,300 days afield; CMU, 7,654,700 birds, 427,100 
hunters, and 1,333,600 days afield; and WMU, 1,265,000 birds, 102,300 
hunters, and 261,800 days afield.

Review of Public Comments and Flyway Council Recommendations

    The preliminary proposed rulemaking, which appeared in the August 
6, 2015, Federal Register, opened the public comment period for 
migratory game bird hunting regulations and discussed the regulatory 
alternatives for the 2016-17 duck hunting season. Comments are 
summarized below and numbered in the order used in the August 6, 2015, 
proposed rule. We have included only the numbered items pertaining to 
issues for which we received written comments. Consequently, the issues 
do not follow in successive numerical order.
    We received recommendations from all four Flyway Councils. Some 
recommendations supported continuation of last year's frameworks. Due 
to the comprehensive nature of the annual review of the frameworks 
performed by the Councils, support for continuation of last year's 
frameworks is assumed for items for which no recommendations were 
received. Council recommendations for changes in the frameworks are 
summarized below.
    We seek additional information and comments on the recommendations 
in this supplemental proposed rule. New proposals and modifications to 
previously described proposals are discussed below. Wherever possible, 
they are discussed under headings corresponding to the numbered items 
in the August 6, 2015, proposed rule.

General

    Written Comments: A commenter protested the entire migratory bird 
hunting regulations process, the killing of all migratory birds, and 
status and habitat data on which the migratory bird hunting regulations 
are based.
    Service Response: Our long-term objectives continue to include 
providing opportunities to harvest portions of certain migratory game 
bird populations and to limit harvests to levels compatible with each 
population's ability to maintain healthy, viable numbers. Having taken 
into account the zones of temperature and the distribution, abundance, 
economic value, breeding habits, and times and lines of flight of 
migratory birds, we believe that the hunting seasons provided for 
herein are compatible with the current status of migratory bird 
populations and long-term population goals. Additionally, we are 
obligated to, and do, give serious consideration to all information 
received as public comment. While there are problems inherent with any 
type of representative management of public-trust resources, we believe 
that the Flyway-Council system of migratory game bird management has 
been a longstanding example of State-Federal cooperative management 
since its establishment in 1952. However, as always, we continue to 
seek new ways to streamline and improve the process.

1. Ducks

A. General Harvest Strategy

    Council Recommendations: The Atlantic, Mississippi, Central, and 
Pacific Flyway Councils recommended the adoption of the ``liberal'' 
regulatory alternative.
    Service Response: We propose to continue using adaptive harvest 
management (AHM) to help determine appropriate duck-hunting regulations 
for the 2016-17 season. AHM permits sound resource decisions in the 
face of uncertain regulatory impacts and provides a mechanism for 
reducing that uncertainty over time. We use AHM to evaluate four 
alternative regulatory levels for duck hunting based on the population 
status of mallards. (We enact other hunting regulations for species of 
special concern, such as canvasbacks, scaup, and pintails).
    The prescribed regulatory alternative for the Atlantic, 
Mississippi, Central, and Pacific Flyways is based on the status of 
mallard populations that contribute primarily to each Flyway. In the 
Atlantic Flyway, we set hunting regulations based on the population 
status of mallards breeding in eastern North America (Federal survey 
strata 51-54 and 56, and State surveys in New England and the mid-
Atlantic region). In the Central and Mississippi Flyways, we set 
hunting regulations based on the status and dynamics of mid-continent 
mallards. Mid-continent mallards are those breeding in central North 
America (Federal survey strata 13-18, 20-50, and 75-77, and State 
surveys in Minnesota,

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Wisconsin, and Michigan). In the Pacific Flyway, we set hunting 
regulations based on the status and dynamics of western mallards. 
Western mallards are those breeding in Alaska and the northern Yukon 
Territory (as based on Federal surveys in strata 1-12), and in 
California and Oregon (as based on State-conducted surveys).
    For the 2016-17 season, we recommend continuing to use independent 
optimization to determine the optimal regulatory choice for each 
mallard stock. This means that we would develop regulations for eastern 
mallards, mid-continent mallards, and western mallards independently, 
based upon the breeding stock that contributes primarily to each 
Flyway. We detailed implementation of this AHM decision framework for 
western and mid-continent mallards in the July 24, 2008, Federal 
Register (73 FR 43290) and for eastern mallards in the July 20, 2012, 
Federal Register (77 FR 42920). We further documented how adjustments 
were made to these decision frameworks in order to be compatible with 
the new regulatory schedule (https://www.fws.gov/migratorybirds/pdf/management/AHM/SEIS&AHMReportFinal.pdf).
    For the 2016-17 hunting season, we are continuing to consider the 
same regulatory alternatives as those used last year. The nature of the 
``restrictive,'' ``moderate,'' and ``liberal'' alternatives has 
remained essentially unchanged since 1997, except that extended 
framework dates have been offered in the ``moderate'' and ``liberal'' 
regulatory alternatives since 2002 (67 FR 47224; July 17, 2002).
    The optimal AHM strategies for mid-continent, eastern, and western 
mallards for the 2016-17 hunting season were calculated using: (1) 
Harvest-management objectives specific to each mallard stock; (2) the 
2016-17 regulatory alternatives (see further discussion below under B. 
Regulatory Alternatives); and (3) current population models and 
associated weights. Based on ``liberal'' regulatory alternatives 
selected for the 2015 hunting season, the 2015 survey results of 11.79 
million mid-continent mallards (traditional survey area minus Alaska 
and the Old Crow Flats area of the Yukon Territory, plus Minnesota, 
Wisconsin, and Michigan) and 4.15 million ponds in Prairie Canada, 0.73 
million eastern mallards (0.19 million and 0.54 million respectively in 
northeast Canada and the northeastern United States), and 0.73 million 
western mallards (0.26 million in California-Oregon and 0.47 million in 
Alaska), the optimal regulatory choice for all four Flyways is the 
``liberal'' alternative. Therefore, we concur with the recommendations 
of the Atlantic, Mississippi, Central, and Pacific Flyway Councils 
regarding selection of the ``liberal'' regulatory alternative for the 
2016-17 season and propose to adopt the ``liberal'' regulatory 
alternative, as described in the August 6, 2015, Federal Register.

B. Regulatory Alternatives

    Council Recommendations: The Atlantic and Mississippi Flyway 
Councils recommended that the framework closing date for ducks be 
extended to January 31 in the ``moderate'' and ``liberal'' regulatory 
alternatives.
    Service Response: We do not support the Councils' recommendation to 
extend the duck season framework closing date to January 31 at this 
time. We note that the current framework opening and closing dates were 
developed through a cooperative effort between all four Flyway Councils 
and that framework dates are only one of several components that 
comprise the regulatory packages utilized in AHM. Regulatory packages 
also consider season length, daily bag limits, and shooting hours. We 
believe the current regulatory packages in the Atlantic and Mississippi 
Flyways should remain unchanged until revisions to the AHM protocols 
have been completed. Those efforts will include examination of duck 
harvest management objectives, model updates, and revisions to 
regulatory packages, including framework dates. We prefer that the 
issue of framework dates and any other component of the regulatory 
packages be addressed through this cooperative process and would prefer 
a comprehensive approach to revising regulatory packages rather than 
making incremental changes.

D. Special Seasons/Species Management

i. September Teal Seasons
    For the 2016-17 season, we will utilize the 2015 breeding 
population estimate of 8.3 million blue-winged teal from the 
traditional survey area and the criteria developed for the teal season 
harvest strategy. Thus, a 16-day September teal season in the Atlantic, 
Central, and Mississippi Flyways is appropriate for the 2016 season.
iii. Black Ducks
    Council Recommendations: The Atlantic and Mississippi Flyway 
Councils recommended that the Service continue to follow the 
International Black Duck AHM Strategy for the 2016-17 season.
    Service Response: In 2012, we adopted the International Black Duck 
AHM Strategy (77 FR 49868; August 17, 2012). The formal strategy is the 
result of 14 years of technical and policy decisions developed and 
agreed upon by both Canadian and U.S. agencies and waterfowl managers. 
The strategy clarifies what harvest levels each country will manage for 
and reduces conflicts over country-specific regulatory policies. 
Further, the strategy allows for attainment of fundamental objectives 
of black duck management: Resource conservation, perpetuation of 
hunting tradition, and equitable access to the black duck resource 
between Canada and the United States while accommodating the 
fundamental sources of uncertainty, partial controllability and 
observability, structural uncertainty, and environmental variation. The 
underlying model performance is assessed annually, with a comprehensive 
evaluation of the entire strategy (objectives and model set) planned 
after 6 years.
    A copy of the strategy is available at the address indicated under 
FOR FURTHER INFORMATION CONTACT, or from our Web site at https://www.fws.gov/migratorybirds/NewsPublicationsReports.html.
    For the 2016-17 season, the optimal country-specific regulatory 
strategies were calculated using: (1) The black duck harvest objective 
(98 percent of long-term cumulative harvest); (2) 2016-17 country-
specific regulatory alternatives; (3) current parameter estimates for 
mallard competition and additive mortality; and (4) 2015 survey results 
of 0.54 million breeding black ducks and 0.41 million breeding mallards 
in the core survey area. The optimal regulatory choices for the 2016-17 
season are the ``moderate'' package in Canada and the ``restrictive'' 
package in the United States.
iv. Canvasbacks
    Council Recommendations: The Mississippi, Central, and Pacific 
Flyway Councils recommended a full season for canvasbacks with a 2-bird 
daily bag limit. The Atlantic Flyway Council recommended a full season 
for canvasbacks with a 1-bird daily bag limit. Season lengths would be 
60 days in the Atlantic and Mississippi Flyways, 74 days in the Central 
Flyway, and 107 days in the Pacific Flyway.
    Service Response: Since 1994, we have followed a canvasback harvest 
strategy whereby if canvasback population status and production are 
sufficient to permit a harvest of one canvasback per day nationwide for 
the

[[Page 77093]]

entire length of the regular duck season, while still attaining an 
objective of 500,000 birds the following spring, the season on 
canvasbacks should be opened. A partial season would be allowed if the 
estimated allowable harvest was below that associated with a 1-bird 
daily bag limit for the entire season. If neither of these conditions 
can be met, the harvest strategy calls for a closed season on 
canvasbacks nationwide. In 2008 (73 FR 43290; July 24, 2008), we 
announced our decision to modify the canvasback harvest strategy to 
incorporate the option for a 2-bird daily bag limit for canvasbacks 
when the predicted breeding population the subsequent year exceeds 
725,000 birds.
    As we discussed in the August 6, 2015, proposed rule, the current 
harvest strategy relies on information that is not yet available under 
this new regulatory process. Thus, the current canvasback harvest 
management strategy is no longer usable for the 2016-17 season and 
beyond. We further stated that we do not yet have a new harvest 
strategy to propose for use in the future and that we would review the 
most recent information on canvasback populations, habitat conditions, 
and harvests with the goal of compiling the best information available 
for use in making a harvest management decision for the 2016-17 season.
    As such, we support the Mississippi, Central, and Pacific Flyways' 
recommendation for a 2-canvasback daily bag limit for the 2016-17 
season and will offer the opportunity to all four Flyways. This past 
year's spring survey resulted in an estimate of 757,000 canvasbacks and 
4.15 million Canadian ponds. The former canvasback harvest strategy 
predicts a 2016 canvasback breeding population of 727,000 birds under 
the current 2015-16 ``liberal'' duck season with a 2-canvasback daily 
bag limit. Our analysis indicates that the expected harvest associated 
with a 2-bird bag limit during the 2016 season poses a very small 
possibility of the spring 2017 canvasback abundance falling below 
500,000 birds given the current abundance of canvasbacks. However, we 
also recognize that in previous years where 2 canvasbacks per day were 
allowed in the daily bag limit, the following year required a more 
restrictive daily bag limit, and we are prepared to recommend 
restrictions for the 2017-18 season if necessary. Thus, we strongly 
encourage the Flyways to begin working with Service staff to develop a 
process for informing canvasback harvest management decisions prior to 
the Flyway meetings next March.
v. Pintails
    Council Recommendations: The Atlantic, Mississippi, Central, and 
Pacific Flyway Councils recommended a full season for pintails, 
consisting of a 2-bird daily bag limit and a 60-day season in the 
Atlantic and Mississippi Flyways, a 74-day season in the Central 
Flyway, and a 107-day season in the Pacific Flyway.
    Service Response: The current derived pintail harvest strategy was 
adopted by the Service and Flyway Councils in 2010 (75 FR 44856; July 
29, 2010). For the 2016-17 season, an optimal regulatory strategy for 
pintails was calculated with: (1) An objective of maximizing long-term 
cumulative harvest, including a closed-season constraint of 1.75 
million birds; (2) the regulatory alternatives and associated predicted 
harvest; and (3) current population models and their relative weights. 
Based on a ``liberal'' regulatory alternative with a 2-bird daily bag 
limit in 2015, the 2015 survey results of 3.04 million pintails 
observed at a mean latitude of 55.9 and a latitude-adjusted breeding 
population of 4.16 million birds, the optimal regulatory choice for all 
four Flyways for the 2016-17 hunting season is the ``liberal'' 
alternative with a 2-bird daily bag limit.
vi. Scaup
    Council Recommendations: The Atlantic, Mississippi, Central, and 
Pacific Flyway Councils recommended use of the ``moderate'' regulation 
package, consisting of a 60-day season with a 2-bird daily bag in the 
Atlantic Flyway and a 3-bird daily bag in the Mississippi Flyway, a 74-
day season with a 3-bird daily bag limit in the Central Flyway, and an 
86-day season with a 3-bird daily bag limit in the Pacific Flyway.
    Service Response: In 2008, we adopted and implemented a new scaup 
harvest strategy (73 FR 43290 on July 24, 2008, and 73 FR 51124 on 
August 29, 2008) with initial ``restrictive,'' ``moderate,'' and 
``liberal'' regulatory packages adopted for each Flyway.
    For scaup, optimal regulatory strategies for the 2016-17 season 
were calculated using: (1) An objective to achieve 95 percent of long-
term cumulative harvest, (2) current scaup regulatory alternatives, and 
(3) updated model parameters and weights. Based on a ``moderate'' 
regulatory alternative selected in 2015 and the 2015 survey results of 
4.40 million scaup, the optimal regulatory choice for the 2016-17 
season for all four Flyways is the ``moderate'' regulatory alternative.
ix. Youth Hunt
    Council Recommendations: The Atlantic Flyway Council recommended 
allowing the States to use their definitions of age for youth hunters 
as the age requirement for participation in youth hunting days.
    The Mississippi and Central Flyway Councils recommended that we 
allow States to use their established definitions of age for youth 
hunters as the age requirement for participation in youth hunting days, 
not to include anyone over the age of 17.
    The Pacific Flyway Council recommended striking the participation 
restriction that youth hunters must be 15 years of age or younger and 
allowing each State to use their established definition for the age of 
youth hunters as long as it is 17 years of age or younger. The Council 
further recommended retaining other participation restrictions 
requiring that an adult at least 18 years of age must accompany the 
youth hunter into the field.
    Service Response: Since its inception in 1996, the Special Youth 
Waterfowl Days have fostered greater involvement of youth in waterfowl 
hunting and conservation. However, we recognize that many States allow 
individuals 17 years and younger to participate in youth hunting 
seasons other than those for waterfowl, whereas the current Federal 
framework for the Youth Waterfowl Hunt is 15 years and younger. We 
further recognize that this difference has caused some confusion and 
frustration from youth hunters, especially those between the ages of 15 
and 17. Thus, we agree that allowing individual States to have a common 
definition of youth age for all of their different youth hunting 
seasons would simplify the issue for many States. States would still 
have the option to adopt an age restriction younger than 17 if they so 
choose. For those youth hunters 16 years of age and older, the 
requirement to possess a Federal Migratory Bird Hunting and 
Conservation Stamp (also known as Federal Duck Stamp) would remain in 
effect, as would the requirement that any youth hunter must be 
accompanied by an adult at least 18 years of age.

2. Sea Ducks

    Council Recommendations: The Atlantic Flyway Council recommended 
that sea ducks in the Atlantic Flyway be exposed to no more than 60 
days of hunting in any Special Sea Duck Area, or regular duck hunting 
area or zone. They further recommended that in ``Special Sea Duck 
Areas,'' the bag limit

[[Page 77094]]

for sea ducks would be 5, to include no more than 4 eiders, 4 scoters, 
or 4 long-tailed ducks. In regular duck season areas and in States with 
no special sea duck areas, sea ducks would count toward the total bag 
of 6 ducks, which could include no more than 4 eiders, 4 scoters, and 4 
long-tailed ducks. Splits would be allowed in the Special Sea Duck Area 
if the sea duck season is set concurrently with the regular duck 
season; otherwise, season dates in the Special Sea Duck Area could not 
be split. Lastly, the Council recommended that the taking of crippled 
waterfowl under power be allowed to continue in Special Sea Duck Areas 
as they are currently delineated (50 CFR 20.105) (regardless of whether 
a special sea duck season is held).
    Service Response: We agree with the Atlantic Flyway Council's 
recommendations to reduce the harvest of sea ducks. The recent Sea Duck 
Harvest Potential Assessment indicates that the likelihood of 
overharvest of scoter, Atlantic common eider, and long-tailed duck 
populations ranges from 48 percent (Eastern black scoter) to 95 percent 
(long-tailed duck). Further, sea ducks have a low reproduction rate 
normally offset by the longevity of adults. As such, hunting mortality 
is almost entirely additive. One of the incentives for sea duck hunting 
has been the opportunity for hunters to achieve a high daily bag limit 
(7 ducks). The Atlantic Flyway Council believes, and we concur, that 
reducing the general daily bag limit to 5 will reduce that incentive, 
but still allow special sea duck hunting opportunity. They further 
estimate that the recommended changes in season length, daily bag 
limits, and area restrictions are expected to achieve an approximate 
harvest reduction of 25 percent.

4. Canada Geese

A. Special Early Seasons

    Council Recommendations: The Pacific Flyway Council recommended 
generalizing the special early Canada goose season frameworks in the 
Pacific Flyway to apply to all States except Alaska. Specifically, the 
Council recommended a Canada goose season of up to 15 days during 
September 1-20 with a daily bag limit of not more than 5 Canada geese, 
except in Pacific County, Washington, where the daily bag limit could 
not exceed 15 Canada geese. The Council recommended that all areas open 
to hunting of Canada geese in each State must be described, delineated, 
and designated as such in each State's hunting regulations.
    Service Response: We agree with the Pacific Flyway Council's 
recommendation to generalize the special early Canada goose season 
framework to apply to all Pacific Flyway States except Alaska. The 
special early Canada goose hunting season is generally designed to 
reduce or control overabundant resident Canada goose populations. Early 
Canada goose seasons are currently allowed in 6 of 11 Pacific Flyway 
States excluding Alaska. Allowing a general season length of up to 15 
days during September 1-20 and a bag limit of up to 5 Canada geese in 
all of the Pacific Flyway States except Alaska will simplify and 
standardize the early Canada goose season framework among Pacific 
Flyway States and provide a tool to help reduce or control the 
abundance of resident Canada geese in all Pacific Flyway States. The 
Flyway-wide framework is more consistent with the frameworks for other 
species and the special early Canada goose season frameworks in other 
Flyways.

B. Regular Seasons

    Council Recommendations: The Mississippi Flyway Council recommended 
that the opening and closing framework dates for all geese in the 
Mississippi Flyway be September 1 to February 15 beginning in 2016. 
They also recommended that the frameworks for Canada geese in the 
Mississippi Flyway, beginning in 2016, allow 107 days with up to a 5-
bird daily bag limit September 1-30 (except in the Intensive Harvest 
Zone in Minnesota, which may have up to a 10-bird daily bag limit) and 
a 3-bird daily bag limit for the remainder of the season. Seasons could 
be split into 4 segments.
    Service Response: As we have previously indicated (77 FR 58448, 
September 20, 2012), we support the Mississippi Flyway Council 
recommendations to move from State-specific frameworks to Flyway-wide 
Canada goose frameworks. Management of Canada geese in the Mississippi 
Flyway is complicated by the need to balance potentially conflicting 
objectives for arctic, subarctic, and temperate (resident) breeding 
populations. Increased abundance of temperate-breeding Canada geese has 
caused conflicts with people and human activities, and regulations have 
been gradually liberalized to increase harvest of such birds to reduce 
those conflicts. The Council believes that hunting is an important 
means of controlling goose populations in the Mississippi Flyway, but 
notes that Canada goose harvest has declined since 2006, even with 
recent liberalizations enacted in the flyway. The Council believes the 
recommended season structure will allow State managers additional 
flexibility in days, dates, and bag limits to meet management needs and 
the desires of goose hunters in their State, and we concur.
    We also agree with the Council's recommendation to adjust the 
opening and closing framework dates for all geese in the Mississippi 
Flyway to September 1 through February 15 beginning in 2016. The 
Council's recommendation to change the goose framework opening date 
from the Saturday nearest September 24 to September 1 is compatible 
with the recent change in our regulatory schedule that combines the 
early and late season regulations processes (see also 5. White-fronted 
Geese and 7. Snow and Ross's (Light) Geese, below).
    Lastly, we note that the Council is developing a general Canada 
Goose Management Plan for the flyway, which will incorporate aspects of 
existing management plans for migrant populations (Eastern Prairie 
Population (EPP), Mississippi Valley Population (MVP), and Southern 
James Bay Population (SJBP)) and the temperate-nesting Giant Canada 
Goose population. Although the Flyway no longer recognizes zones for 
EPP, MVP and SJBP populations, we note that portions of the SJBP 
population migrate to the Atlantic Flyway. Therefore, we urge the 
Mississippi Flyway Council to consult with the Atlantic Flyway Council 
as the general Canada goose management plan is being developed for the 
Mississippi Flyway.

5. White-Fronted Geese

    Council Recommendations: The Mississippi Flyway Council recommended 
that the opening and closing framework dates for all geese in the 
Mississippi Flyway be September 1 to February 15 beginning in 2016.
    Service Response: We agree with the Mississippi Flyway Council's 
recommendation to adjust the opening and closing framework dates for 
all geese in the Mississippi Flyway to September 1 through February 15 
beginning in 2016. Currently, framework dates for white-fronted geese 
are from the Saturday nearest Sept. 24 to the Sunday nearest Feb. 15. 
Adjusting the framework dates for other geese (snow and white-fronted 
geese) will allow States flexibility to open and/or close all goose 
seasons on the same date. Since the numbers of white-fronted geese 
present in the Mississippi Flyway in September are low, we expect no 
impacts from this change.

[[Page 77095]]

6. Brant

    Council Recommendations: The Atlantic Flyway Council recommends 
that the 2016-17 season for Atlantic brant follow the Atlantic Flyway 
Brant Hunt plan pending the results of the 2016 Atlantic Flyway mid-
winter waterfowl survey. The Council also recommended that if the 
results of the 2016 mid-winter survey are not available, then the 
results of the most recent mid-winter survey should be used.
    Service Response: As we discussed in the August 6, 2015, proposed 
rule, the current harvest strategy used to determine the Atlantic brant 
season frameworks does not fit well within the new regulatory process, 
similar to the RMP sandhill crane issue discussed below under 9. 
Sandhill Cranes. In developing the annual proposed frameworks for 
Atlantic brant in the past, the Atlantic Flyway Council and the Service 
used the number of brant counted during the Mid-winter Waterfowl Survey 
(MWS) in the Atlantic Flyway, and took into consideration the brant 
population's expected productivity that summer. The MWS is conducted 
each January, and expected brant productivity is based on early-summer 
observations of breeding habitat conditions and nesting effort in 
important brant nesting areas. Thus, the data under consideration were 
available before the annual Flyway and SRC decision-making meetings 
took place in late July. Although the former regulatory alternatives 
for Atlantic brant were developed by factoring together long-term 
productivity rates (observed during November and December productivity 
surveys) with estimated observed harvest under different framework 
regulations, the primary decision-making criterion for selecting the 
annual frameworks was the MWS count.
    Under the new regulatory schedule for the 2016-17 migratory bird 
hunting regulations, neither the expected 2016 brant production 
information (available summer 2016) nor the 2016 MWS count (conducted 
in January 2016) is yet available. However, the 2016 MWS will be 
completed and winter brant data will be available by the expected 
publication of the final frameworks (late February 2016). Therefore, in 
the September 24, 2015, Federal Register (80 FR 57664), we adopted the 
Atlantic Flyway's changes to the then-current Atlantic brant hunt plan 
strategies. Current harvest packages (strategies) for Atlantic brant 
hunting seasons are now as follows:
     If the mid-winter waterfowl survey (MWS) count is <100,000 
Atlantic brant, the season would be closed.
     If the MWS count is between 100,000 and 115,000 brant, 
States could select a 30-day season with a 1-bird daily bag limit.
     If the MWS count is between 115,000 and 130,000 brant, 
States could select a 30-day season with a 2-bird daily bag limit.
     If the MWS count is between 130,000 and 150,000 brant, 
States could select a 50-day season with a 2-bird daily bag limit.
     If the MWS count is between 150,000 and 200,000 brant, 
States could select a 60-day season with a 2-bird daily bag limit.
     If the MWS count is >200,000 brant, States could select a 
60-day season with a 3-bird daily bag limit.
    Under all the above open-season alternatives, seasons would be 
between the Saturday nearest September 24 and January 31. Further, 
States could split their seasons into 2 segments.
    When we acquire the 2016 MWS brant count in January 2016, we will 
select the appropriate Atlantic brant hunting season for 2016-17 from 
the above Atlantic brant hunt strategies and publish the result in the 
final frameworks rule.

7. Snow and Ross's (Light) Geese

    Council Recommendations: The Mississippi Flyway Council recommended 
that the opening and closing framework dates for all geese in the 
Mississippi Flyway be September 1 to February 15 beginning in 2016.
    Service Response: As we stated above under 5. White-fronted Geese, 
we agree with the Mississippi Flyway Council's recommendation to adjust 
the opening and closing framework dates for all geese in the 
Mississippi Flyway to September 1 through February 15 beginning in 
2016. Currently, framework dates for snow geese are from the Saturday 
nearest Sept. 24 to the Sunday nearest Feb. 15. Adjusting the framework 
dates for other geese (snow and white-fronted geese) will allow States 
flexibility to open and/or close all goose seasons on the same date. 
Since there are low numbers of snow geese present in the Mississippi 
Flyway in September, we expect no impacts from this change.

9. Sandhill Cranes

    Council Recommendations: The Mississippi Flyway Council recommended 
that Tennessee be allowed an additional year (2016-17) of their 
experimental sandhill crane hunting season under harvest guidelines set 
for their experimental season.
    The Central and Pacific Flyway Council's recommended (1) the 
addition of a new Rocky Mountain Population (RMP) sandhill crane 
hunting unit in Carbon County Montana, (2) a new hunt area for RMP 
sandhill cranes in Sheridan, Johnson, and Natrona Counties, Wyoming, 
and (3) that allowable harvest be determined based on the formula 
described in the Pacific and Central Flyway Management Plan for RMP 
sandhill cranes.
    Service Response: We agree with the Mississippi Flyway Council to 
allow Tennessee an additional year under the existing experimental 
season. The Council notes that harvest during the first 2 years of the 
experiment was well below the permitted number, 342 and 393 cranes, 
respectively, in 2013 and 2014. The approved Tennessee sandhill crane 
hunt plan allows Tennessee to issue 775 hunters a total of 2,325 
permits (3 per person). This permit allocation was based on a peak 
number of cranes observed in Tennessee (23,334 during 2009-13), so the 
continued allotment of permits would still fall within guidelines set 
by the Eastern Population Crane Management Plan. While the 2015-16 
season marks the completion of Tennessee's experimental 3-year sandhill 
crane season, Tennessee will collect and analyze population and hunter 
data during the 2015-16 season and prepare a final report on the 
experimental season for distribution at the late summer 2016 Flyway 
meeting. We expect a proposal for an operational season will likely be 
made at that time.
    We also agree with the Central and Pacific Flyway Council's 
recommendation for new RMP sandhill crane hunting areas in Montana 
(Carbon County) and Wyoming (Sheridan, Johnson, and Natrona Counties). 
The new hunt areas are consistent with the Pacific and Central Flyway 
Council's RMP sandhill crane management plan hunting area requirements.
    Regarding the RMP crane harvest, as we discussed in the August 6, 
2015, proposed rule, the current harvest strategy used to calculate the 
allowable harvest of the RMP of sandhill cranes does not fit well 
within the new regulatory process, similar to the Atlantic brant issue 
discussed above under 6. Brant. Currently, results of the fall survey 
of RMP sandhill cranes, upon which the annual allowable harvest is 
based, will continue to be released between December 15 and January 31 
each year, which is after the date for which proposed frameworks will 
be formulated in the new regulatory process. If the usual procedures 
for

[[Page 77096]]

determining allowable harvest were used, data 2-4 years old would be 
used to determine the annual allocation for RMP sandhill cranes. Due to 
the variability in fall survey counts and recruitment for this 
population, and their impact on the annual harvest allocations, we 
agree that relying on data that is 2-4 years old is not ideal.
    Thus, we agree that the formula to determine the annual allowable 
harvest for RMP sandhill cranes should be used under the new regulatory 
schedule and propose to utilize it as such. That formula uses 
information on abundance and recruitment collected annually through 
operational monitoring programs, as well as constant values based on 
past research or monitoring for survival of fledglings to breeding age 
and harvest retrieval rate. The formula is:

    H = C x P x R x L x f

Where:

H = total annual allowable harvest;
C = the average of the three most recent, reliable fall population 
indices;
P = the average proportion of fledged chicks in the fall population 
in the San Luis Valley during the most recent 3 years for which data 
are available;
R = estimated recruitment of fledged chicks to breeding age (current 
estimate is 0.5);
L = retrieval rate of 0.80 (allowance for an estimated 20 percent 
crippling loss based on hunter interviews); and
f = (C/16,000)\3\ (a variable factor used to adjust the total 
harvest to achieve a desired effect on the entire population)

    A final estimate for the allowable harvest would be available to 
publish in the final rule, allowing us to use data that is 1-3 years 
old as is currently practiced.

14. Woodcock

    In 2011, we implemented a harvest strategy for woodcock (76 FR 
19876, April 8, 2011). The harvest strategy provides a transparent 
framework for making regulatory decisions for woodcock season length 
and bag limit while we work to improve monitoring and assessment 
protocols for this species. Utilizing the criteria developed for the 
strategy, the 3-year average for the Singing Ground Survey indices and 
associated confidence intervals fall within the ``moderate package'' 
for both the Eastern and Central Management Regions. As such, a 
``moderate season'' for both management regions for the 2016-17 season 
is appropriate.
    Specifics of the harvest strategy can be found at https://www.fws.gov/migratorybirds/NewsPublicationsReports.html.

16. Doves

    Council Recommendations: The Atlantic and Mississippi Flyway 
Councils recommended use of the ``standard'' season framework 
comprising a 90-day season and 15-bird daily bag limit for States 
within the Eastern Management Unit. The daily bag limit could be 
composed of mourning doves and white-winged doves, singly or in 
combination.
    The Mississippi and Central Flyway Councils recommended the use of 
the ``standard'' season package of a 15-bird daily bag limit and a 90-
day season for the 2016-17 mourning dove season in the States within 
the Central Management Unit.
    The Pacific Flyway Council recommended use of the ``standard'' 
season framework for States in the Western Management Unit (WMU) 
population of mourning doves. In Idaho, Nevada, Oregon, Utah, and 
Washington, the season length would be no more than 60 consecutive days 
with a daily bag limit of 15 mourning and white-winged doves in the 
aggregate. In Arizona and California, the season length would be no 
more than 60 consecutive days, which could be split between two 
periods, September 1-15 and November 1-January 15. In Arizona, during 
the first segment of the season, the daily bag limit would be 15 
mourning and white-winged doves in the aggregate, of which no more than 
10 could be white-winged doves. During the remainder of the season, the 
daily bag limit would be 15 mourning doves. In California, the daily 
bag limit would be 15 mourning and white-winged doves in the aggregate, 
of which no more than 10 could be white-winged doves.
    Service Response: Based on the harvest strategies and current 
population status, we agree with the recommended selection of the 
``standard'' season frameworks for doves in the Eastern, Central, and 
Western Management Units for the 2016-17 season.

17. Alaska

    Council Recommendations: The Pacific Flyway Council recommended 
increasing the daily bag limit for brant from 2 to 3, and increasing 
the daily bag limit for light geese from 4 to 6.
    Service Response: We agree with the Pacific Flyway Council's 
recommendation to increase the daily bag limit in Alaska from 2 to 3 
brant. The Flyway management plan for Pacific brant allows harvest to 
increase by two times the current level if the 3-year average 
population index exceeds 135,000 brant based on the mid-winter 
waterfowl survey. The 3-year (2013-2015) average is 157,700 brant, and 
is near the population objective of 162,000 brant. Increasing the daily 
bag limit from 2 to 3 brant will allow additional hunting opportunity 
while maintaining the season length at the maximum of 107 days for 
brant, and is not expected to increase harvest appreciably from that 
anticipated with a 2-brant daily bag limit.
    We also agree with the Pacific Flyway Council's recommendation to 
increase the light goose daily bag limit from 4 to 6 light geese in 
Alaska. Two populations of light geese occur in Alaska, and both are 
above Flyway management plan objectives based on the most recent 
breeding population indices. The population estimate for the Western 
Arctic Population (WAP) of lesser snow geese was 451,000 in 2013 (most 
recent estimate), which is above the objective of 200,000 geese. Most 
of WAP lesser snow geese nest in the Egg River colony on Banks Island, 
Canada, but t