Endangered and Threatened Wildlife and Plants; Establishment of a Nonessential Experimental Population of the California Condor in the Pacific Northwest, 15602-15623 [2021-05646]

Agencies

• Fish and Wildlife Service
• DEPARTMENT OF THE INTERIOR

[Federal Register Volume 86, Number 55 (Wednesday, March 24, 2021)]
[Rules and Regulations]
[Pages 15602-15623]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2021-05646]


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DEPARTMENT OF THE INTERIOR

Fish and Wildlife Service

50 CFR Part 17

[Docket No. FWS-R1-ES-2018-0033; FXES111300000900000 178 FF09E42000]
RIN 1018-BC65


Endangered and Threatened Wildlife and Plants; Establishment of a 
Nonessential Experimental Population of the California Condor in the 
Pacific Northwest

AGENCY: Fish and Wildlife Service, Interior.

ACTION: Final rule.

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SUMMARY: We, the U.S. Fish and Wildlife Service (Service or USFWS), are 
establishing a nonessential experimental population (NEP) of the 
California condor (Gymnogyps californianus) in the Pacific Northwest, 
under section 10(j) of the Endangered Species Act of 1973, as amended 
(Act). Establishment of this NEP will facilitate reintroduction of 
California condors to the region and provide for allowable legal 
incidental taking of the California condor within a defined NEP area. 
The geographic boundaries of the NEP include northern California, 
northwest Nevada, and Oregon. The best available data indicate that 
reintroduction of the California condor into the Pacific Northwest is 
biologically feasible and will promote the conservation of the species.

DATES: This final rule is effective April 23, 2021.

ADDRESSES: This final rule is available on https://www.regulations.gov 
at Docket No. FWS-R1-ES-2018-0033 and on our website at https://ecos.fws.gov/ecp0/profile/speciesProfile?spcode=B002. Comments and 
materials we received, as well as supporting documentation we used in 
preparing this rule, are also available for public inspection at https://www.regulations.gov. Persons who use a telecommunications device for 
the deaf (TDD) may call the Federal Relay Service at 1-800-877-8339.

FOR FURTHER INFORMATION CONTACT: Jesse D'Elia, Pacific Regional Office, 
U.S. Fish and Wildlife Service, Ecological Services, 911 NE 11th Ave., 
Portland, OR 97232; telephone 503-231-6131. Persons who use a 
telecommunications device for the deaf (TDD) may call the Federal Relay 
Service at 1-800-877-8339.

SUPPLEMENTARY INFORMATION:

Executive Summary

    Why we need to publish a rule. Under the Endangered Species Act, a 
population of a threatened or endangered species may be designated as 
an experimental population prior to its reintroduction. Experimental 
populations can only be designated by issuing a rule.
    What this document does. This rule will designate California 
condors (Gymnogyps californianus) reintroduced to the Pacific Northwest 
as a nonessential experimental population on the List of Endangered and 
Threatened Wildlife in title 50 of the Code of Federal Regulations at 
50 CFR 17.11(h) with a rule issued under section 10(j) of the Act 
(hereafter referred to as a ``10(j) rule'') at 50 CFR 17.84.
    The basis for our action. Based on the best scientific and 
commercial data available (in accordance with 50 CFR 17.81), we find 
that releasing the California condors into the Pacific Northwest, with 
the regulatory provisions in this final rulemaking, will further the 
conservation of the species. The nonessential experimental population 
status is appropriate for the reintroduced population because we have 
determined that it is not essential to the continued existence of the 
species in the wild.
    In making our finding that this action will further the 
conservation of the species, we evaluate any possible adverse effects 
on extant California condor populations, the likelihood that any such 
experimental population will become established and survive in the 
foreseeable future, the relative effects that establishment of an 
experimental

[[Page 15603]]

population will have on the recovery of the species, and the extent to 
which the reintroduced population may be affected by existing or 
anticipated Federal or State actions or private activities within or 
adjacent to the experimental population area. This rule also identifies 
the boundaries of the experimental population, explains our rationale 
for why the population is not essential to the continued existence of 
the species in the wild, describes management restrictions, protective 
measures, or other special management concerns of that population, and 
explains a process for periodic review and evaluation of the success or 
failure of the release and the effect of the release on the 
conservation and recovery of the species. In June 2016, a Memorandum of 
Understanding (MOU) was finalized to assess the potential to recover 
California condors in the Pacific Northwest and to work to seek funding 
to support that effort if it proved feasible. The MOU currently has 16 
signatories.
    Peer review and public comment. We sought comments from three 
objective and independent specialists (and received two responses) to 
ensure that our findings are based on scientifically sound data, 
assumptions, and analyses. As directed by the Service's Peer Review 
Policy dated July 1, 1994 (59 FR 34270) and a recent memo updating the 
peer review policy for listing and recovery actions (August 22, 2016), 
we invited these peer reviewers to comment on our proposal. We also 
considered all comments and information received during the public 
comment period. All comments received during the peer review process 
and the public comment period have either been incorporated throughout 
this rule or addressed below in Summary of Comments and 
Recommendations.

Background

    On April 5, 2019, we published in the Federal Register a proposed 
rule to establish a nonessential experimental population of the 
California condor in the Pacific Northwest (84 FR 13587). The comment 
period on the proposed rule was open for 60 days, through June 4, 2019. 
Comments on the proposed rule are addressed below under Summary of 
Comments and Recommendations.

Statutory and Regulatory Framework

    The 1982 amendments to the Endangered Species Act of 1973 (ESA or 
Act; 16 U.S.C. 1531 et seq.) included the addition of section 10(j), 
which allows for the designation of reintroduced populations of listed 
species as ``experimental populations.'' Under section 10(j) of the Act 
and our regulations in title 50 of the Code of Federal Regulations (at 
50 CFR 17.81), the Service may designate as an experimental population 
a population of endangered or threatened species that has been or will 
be released into suitable natural habitat outside the species' current 
natural range (but within its probable historic range, absent a finding 
by the Director of the Service in the extreme case that the primary 
habitat of the species has been unsuitably and irreversibly altered or 
destroyed).
    Before authorizing the release as an experimental population 
(including eggs, propagules, or individuals) of an endangered or 
threatened species, and before authorizing any necessary transportation 
to conduct the release, the Service must find by regulation that such 
release will further the conservation of the species. 50 CFR 17.81(b). 
In making such a finding the Service uses the best scientific and 
commercial data available to consider:
    (1) Any possible adverse effects on extant populations of a species 
as a result of removal of individuals, eggs, or propagules for 
introduction elsewhere (see Donor Stock Assessment and Effects on Donor 
Population, below);
    (2) The likelihood that any such experimental population will 
become established and survive in the foreseeable future (see 
Likelihood of Population Establishment and Survival and Addressing 
Causes of Extirpation, below);
    (3) The relative effects that establishment of an experimental 
population will have on the recovery of the species (see Relationship 
of NEP to Recovery Efforts, below); and
    (4) The extent to which the introduced population may be affected 
by existing or anticipated Federal or State actions or private 
activities within or adjacent to the experimental population area (see 
Likelihood of Population Establishment and Survival, below; National 
Park Service (NPS) 2018, entire).
    Further, as set forth in 50 CFR 17.81(c), all regulations 
designating experimental populations under section 10(j) must provide:
    (1) Appropriate means to identify the experimental population, 
including, but not limited to, its actual or proposed location, actual 
or anticipated migration, number of specimens released or to be 
released, and other criteria appropriate to identify the experimental 
population(s) (see Location and Boundaries of the NEP, below);
    (2) A finding, based solely on the best scientific and commercial 
data available, and the supporting factual basis, on whether the 
experimental population is, or is not, essential to the continued 
existence of the species in the wild (see Is the Experimental 
Population Essential or Nonessential?, below);
    (3) Management restrictions, protective measures, or other special 
management concerns of that population, which may include but are not 
limited to, measures to isolate and/or contain the experimental 
population designated in the regulation from natural populations (see 
Management, below); and
    (4) A process for periodic review and evaluation of the success or 
failure of the release and the effect of the release on the 
conservation and recovery of the species (see Monitoring and 
Evaluation, below).
    Under 50 CFR 17.81(d), the Service must consult with appropriate 
State fish and wildlife agencies, local governmental entities, affected 
Federal agencies, and affected private landowners in developing and 
implementing experimental population rules. To the maximum extent 
practicable, 10(j) rules represent an agreement between the FWS, the 
affected State and Federal agencies, and persons holding any interest 
in land that may be affected by the establishment of an experimental 
population.
    Under 50 CFR 17.81(f), the Secretary may designate critical habitat 
as defined in section 3(5)(A) of the Act for an essential experimental 
population. No designation of critical habitat will be made for 
nonessential populations. In those situations where a portion or all of 
an essential experimental population overlaps with a natural population 
of the species during certain periods of the year, no critical habitat 
will be designated for the area of overlap unless implemented as a 
revision to critical habitat of the natural population for reasons 
unrelated to the overlap itself.
    Any population determined by the Secretary to be an experimental 
population will be treated as if it were listed as a threatened species 
for purposes of establishing protective regulations with respect to 
that population. The protective regulations adopted for an experimental 
population will contain applicable prohibitions, as appropriate, and 
exceptions for that population. 50 CFR 17.82.
    Any experimental population designated for a listed species (1) 
determined not to be essential to the survival of that species and (2) 
not occurring within the National Park

[[Page 15604]]

System or the National Wildlife Refuge System will be treated for 
purposes of section 7 (other than paragraph (a)(1) thereof) as a 
species proposed to be listed under the Act as a threatened species. 50 
CFR 17.83(a).
    Any experimental population designated for a listed species that 
either (1) has been determined to be essential to the survival of that 
species or (2) occurs within the National Park System or the National 
Wildlife Refuge System as now or hereafter constituted will be treated 
for purposes of section 7 of the Act as a threatened species. 
Notwithstanding the foregoing, any biological opinion prepared pursuant 
to section 7(b) of the Act and any agency determination made pursuant 
to section 7(a) of the Act will consider any experimental and 
nonexperimental populations to constitute a single listed species for 
the purposes of conducting the analyses under such sections. 50 CFR 
17.83(b).

Legal Status

    We listed the California condor as an endangered species under the 
Endangered Species Preservation Act of 1966 (ESPA) on March 11, 1967 
(32 FR 4001, March 11, 1967). This list was later codified in part 17 
of title 50 in the U.S. Code of Federal Regulations (35 FR 16048, 
October 13, 1970). With the passage of the Endangered Species Act of 
1973 (ESA), those species previously listed in the Code of Federal 
Regulations were directly incorporated into the Lists of Endangered and 
Threatened Wildlife and Plants under the ESA, found at 50 CFR 17.11 and 
17.12. In October 1996, we designated a nonessential experimental 
population of the California condor in portions of northern Arizona, 
southern Utah, and southern Nevada (61 FR 54044, October 16, 1996). 
Therefore, the California condor is currently listed as an endangered 
species wherever it is found, except in portions of northern Arizona, 
southern Utah, and southern Nevada, where it is considered a 
nonessential experimental population.
    The California condor is protected by the State of California under 
both the State Endangered Species Act and the California Fish and Game 
Code as a Fully Protected species. It is also listed as a Sensitive 
Species under California Forest Practice Rules. In September of 2018, 
the State of California passed legislation that allows the California 
Department of Fish and Wildlife (CDFW) to consider the content of any 
final rules under section 10(j) of the Federal Endangered Species Act 
for the California condor. This legislation (AB2640) allows the 
Director of the CDFW to evaluate the final rule, and exempt take 
associated with the rule if the Director finds the Service's final rule 
would further the conservation of the species.
    If we are compelled, through court order or other means, to change 
the California condor's NEP status to essential, threatened, or 
endangered, FWS would meet with the parties to the 2016 MOU to discuss 
options on how to proceed, including the option of attempting to 
capture and relocate all condors in the wild within the NEP. We would 
make a fact-specific assessment of how to proceed based on the 
information at that time, including whether there was general agreement 
from the MOU partners that the condors should remain in the wild. 
Changes in the legal status and/or removal of this population of 
California condors will be made in compliance with any applicable 
Federal rulemaking and other procedures.

Biological Information

Species Description

    The California condor is one of seven New World vultures in the 
Cathartidae family and the only extant species in the genus Gymnogyps 
(Amadon 1977, pp. 413-414; Johnson et al. 2016, pp. 193, 197). It is 
the largest of the North American vultures and the largest soaring land 
bird on the continent with a wingspan of approximately 9.5 feet (ft) 
(2.9 meters (m)) (Koford 1953, p. 3; Finkelstein et al. 2015, 
Introduction, Appearance). Males weigh slightly more than females 
(average weight of 19.4 pounds (lb) (8.8 kilograms (kg)) for males and 
17.9 lb (8.1 kg) for females) and have slightly higher wing loading, 
but otherwise there are no obvious differences in coloration or 
morphology between the sexes (Finkelstein et al. 2015, Appearance). 
California condors exhibit age-related coloration changes (Koford 1953, 
p. 5; Snyder and Snyder 2000, pp. 14-19). Adults have black feathers 
except for prominent white underwing linings and edges of the upper 
secondary coverts. The head and neck of adults are mostly naked and 
range in color from yellowish to reddish orange on the head to gray, 
yellow, orange, and red on the neck (Koford 1953, pp. 4-5). The heads 
of juveniles up to 3 years old are grayish-black, and their wing 
linings are variously mottled or completely dark (Koford 1953, p. 5; 
Snyder and Snyder 2000, pp. 14-19). During the third year, the head 
develops yellow coloration, and the dark juvenile underwing linings are 
gradually replaced with white adult feathers (Snyder and Snyder 2000, 
pp. 15, 17). By the time individuals are 5 or 6 years of age, they are 
essentially indistinguishable from adults, but full development of the 
adult wing patterns may not be completed until 7 or 8 years of age 
(Snyder and Snyder 2000, pp. 15, 17; Finkelstein et al. 2015, 
Appearance).
    As obligate scavengers (i.e., relying entirely on dead animals for 
food), California condors have a number of physical and physiological 
adaptations that accommodate their highly specialized diet, including: 
(1) Large size, which is important for maintaining low-energy soaring 
flight, and enduring long periods without food; (2) excellent eyesight, 
which helps condors efficiently find food; (3) hooked bills and long 
necks, which allow condors to access muscle tissue deep within a 
carcass and to rip pieces of meat from a carcass; and (4) resistance to 
bacterial toxins, which is necessary for species that rely on carcasses 
(Snyder and Snyder 2005, pp. 7-31).

Historical Range

    During the Pleistocene Epoch, the California condor was broadly 
distributed in North America from southern British Columbia to Baja 
California, and eastward throughout the southern United States and 
northern Mexico to Florida (Koford 1953, p. 7; Brodkorb 1964, pp. 253-
254; Messing 1986, pp. 284-285; Steadman and Miller 1987, p. 423; 
Snyder and Snyder 2005, p. 6; D'Elia and Haig 2013, p. 17). The extent 
of its distribution along the east coast of North America during the 
late Pleistocene also extended to the boreal forests of upstate New 
York (Steadman and Miller 1987, pp. 416-423). The disappearance of the 
California condor from its prehistoric range in North America east of 
the Rocky Mountains occurred about 10,000-11,000 years ago coinciding 
with the late-Pleistocene extinction of the North American megafauna 
(Emslie 1987, pp. 768-770; Steadman and Miller 1987, pp. 422-425). 
Analysis of stable isotopes in bone collagen suggests that the 
California condor's persistence along the Pacific coast at the end of 
the Pleistocene was at least partially due to the availability of 
marine-derived carrion (Chamberlain et al. 2005, p. 16710; Fox-Dobbs et 
al. 2006, p. 688).
    Historical observations of California condors indicate that they 
were widespread and locally abundant from southern British Columbia, 
Canada, to Baja California, Mexico, during Euro-American colonization 
(Koford 1953, pp. 8-19; Wilbur 1978, pp. 13, 72-85; Snyder and Snyder 
2005, pp. 4-5; D'Elia and Haig 2013, pp. 38-59). At that time they were 
apparently restricted to the

[[Page 15605]]

area west of the Rocky Mountains, with most observations occurring from 
the Cascade Mountains and Sierra Nevada to the coast (Snyder and Snyder 
2000, p. 12; D'Elia and Haig 2013, pp. 38-59). California condor 
population declines and range contractions were concurrent with Euro-
American settlement of the West, with condors disappearing from the 
Pacific Northwest in the early 1900s (D'Elia and Haig 2013, pp. 58-59), 
and from Baja California by the end of the 1930s (Wilbur and Kiff 1980, 
entire). By the middle of the 20th century, the species was reduced to 
about 150 individuals limited to the mountains of southern California 
(Snyder and Snyder 2000, pp. 81-82), and at the time we formally 
classified them as an endangered species in 1967, the population had 
further declined to an estimated 60 condors (Snyder and Snyder 2000, 
pp. 82-83). Most probable causes of their historical decline include: 
(1) Secondary poisoning from predator removal campaigns, (2) direct 
persecution, and (3) lead poisoning from spent ammunition that 
fragmented in animals condors later fed upon (D'Elia and Haig 2013, pp. 
77-122).

Captive Breeding, Reintroduction Efforts, and Current Range

    Due to concerns over the few remaining California condors and the 
population's continued downward trend, beginning in 1983, we took all 
condor eggs from the wild to the San Diego Wild Animal Park and Los 
Angeles Zoo for artificial incubation to form a captive flock (Snyder 
and Hamber 1985, p. 378; Snyder and Snyder 2000, pp. 278-293). By 
taking all wild eggs and inducing multiple clutches and annual nesting, 
the productivity of the population was increased several-fold, allowing 
the captive population to grow rapidly (Snyder and Hamber 1985, p. 
378). However, with the sudden loss of several wild California condors 
in 1984 and 1985, it became necessary for us to capture the remaining 
wild individuals to ensure the genetic viability of the species and 
enhance the chances of the captive-breeding program's success (Snyder 
and Snyder 2000, pp. 298-304). By 1987, the California condor existed 
only in captivity, having suffered a severe population bottleneck and 
loss of genetic diversity (Ralls and Ballou 2004, p. 225; D'Elia et al. 
2016, pp. 707-708). Thus, the conservation of the species was dependent 
upon captive breeding and releases back into the wild.
    We first released captive-reared California condors in 1992 in 
southern California, but because of behavioral problems exhibited by 
these individuals we returned them all to captivity in early 1995 
(Snyder and Snyder 2000, pp. 344-345). We reinitiated releases of 
captive-reared and formerly wild California condors in southern 
California in 1995, and additional release sites were established in 
northern Arizona in 1996, central California near Big Sur in 1997, 
Sierra de San Pedro M[aacute]rtir in Baja California, Mexico, in 2002, 
Pinnacles National Park (formerly Pinnacles National Monument) in 2003, 
and in the mountains near San Simeon, California, in 2015. Currently, 
these release sites comprise four general release areas (central 
California, southern California, Baja California, and Arizona/Utah) in 
three condor populations (a population in central and southern 
California--where individuals from each release area occasionally 
intermingle--and independent populations in northern Arizona/southern 
Utah and Baja California). The California condor is currently absent 
from the northern portion of its historical range and remains reliant 
on the release of captive-bred individuals for population growth (USFWS 
2013, p. 14).
    As of December 2019, there were 337 California condors in the wild, 
divided among the four release areas: Central and southern California 
(200 condors); northern Arizona and southern Utah (98 condors); and the 
Sierra de San Pedro M[aacute]rtir release site in Baja California (39 
condors) (USFWS 2019a, p. 1). There were also 181 California condors in 
captivity (USFWS 2019a, p. 1) distributed among release sites, zoos, 
and four captive-breeding facilities in the United States. Breeding 
facilities include the Peregrine Fund's World Center for Birds of Prey, 
the Oregon Zoo's Jonsson Center for Wildlife Conservation, the Los 
Angeles Zoo, and the San Diego Zoo's Safari Park.
    Despite population growth, the total number of wild California 
condors is still relatively small and the species requires intensive 
management for survival, including: (1) Monitoring a large proportion 
of condors in the wild to track resource use, identify behavioral 
problems, and detect mortalities; (2) biannual trapping for health 
screening, to test blood samples for lead, inoculate for West Nile 
virus, and to attach or replace wing tags and transmitters; (3) taking 
injured or poisoned condors back into captivity temporarily to 
administer treatment; and (4) nest observations and interventions to 
maximize productivity in the wild (Walters et al. 2010, pp. 972, 976, 
982-984; USFWS 2017, pp. 5-19).

Habitat Use and Movement Ecology

    Along with our conservation partners, we have reintroduced 
California condors to a variety of habitats, including coastal 
mountains, old-growth forests, desert cliffs, and temperate montane 
shrublands and grasslands. Within these habitats they can have enormous 
home ranges (Meretsky and Snyder 1992, p. 321; Hunt et al. 2007, pp. 
84-87; Romo et al. 2012, pp. 43-47; Rivers et al. 2014a, pp. 496-498) 
and often use different portions of their range for nesting and 
foraging (Meretsky and Snyder 1992, p. 329; Snyder and Snyder 2000, pp. 
140-147; D'Elia et al. 2015, p. 96). Estimates of home range size 
varied among release sites (95 percent confidence intervals for 
southern California: 173,295-282,760 acres (ac) (70,130-114,429 
hectares (ha)); Pinnacles National Park: 86,825-174,266 ac (35,137-
70,523 ha); and Big Sur: 42,613-90,495 ac (17,245-36,622 ha)), probably 
as a result of geography, food availability (Rivers et al. 2014a, pp. 
496-497, 500), years since the release program started, and flock size 
(Bakker et al. 2017, p. 100).
    Nesting habitat is generally characterized by steep, rugged terrain 
(Wilbur 1978, p. 7; Snyder and Snyder 2000, p. 18; D'Elia et al. 2015, 
pp. 94-95). Within these areas, nests have been documented in various 
types of rock formations including crevices, overhung ledges, potholes, 
and in cavities or broken tops of giant sequoia (Sequoia giganteus) 
(Snyder et al. 1986, pp. 235-236) or coast redwood (Sequoia 
sempervirens) trees (Burnett et al. 2013, pp. 478-479). Breeding adults 
segregate themselves into nesting territories, rarely crossing into the 
nesting territories of other California condors (Finkelstein et al. 
2015, Behavior). California condors will generally use the same nesting 
territory in successive years as long as pairs remain intact, but will 
often switch nesting sites within that territory, regardless of whether 
they fail or succeed in their nesting efforts (Snyder et al. 1986, p. 
236).
    California condors roost communally along rocky outcrops, steep 
canyons, and in tall trees or snags near foraging grounds, water 
sources, and nests (Koford 1953, pp. 35-36; Snyder and Snyder 2000, p. 
167). California condors select roosts that offer winds or thermals 
favorable for soaring flight (Poessel et al. 2018, pp. 48-50), good 
peripheral visibility, where there is a long unobstructed space for 
taking off downhill and for approaching the roost in flight, and areas 
where there is some protection from high winds (Koford 1953, pp. 35-
36). There may be trade-

[[Page 15606]]

offs for condors between these factors and selecting roosts that 
provide protection from predators (Poessel et al. 2018, pp. 48-50). 
While at a roost, condors devote considerable time to preening, 
sunning, and other maintenance activities (Snyder and Snyder 2000, p. 
24).
    California condors are obligate scavengers and obligate soaring 
birds, making them reliant on the availability of sufficient food 
resources and upward air movement (Ruxton and Houston 2004, p. 434, 
Poessel et al. 2018, pp. 36-37). Foraging habitats generally have high 
landscape productivity, moderate to steep slopes, sparse vegetation, 
and updrafts necessary to keep California condors aloft (Rivers et al. 
2014b, pp. 7-9; D'Elia et al. 2015, p. 96). In coastal areas condors 
show strong selection for beaches, likely because of the relative 
abundance of marine mammal carcasses (Rivers et al. 2014b, p. 8). A 
feature of carrion is that dead animals are highly dispersed and 
ephemeral (Ruxton and Houston 2004, p. 433). This exclusive food 
resource has resulted in evolutionary pressure for condors to be large, 
obligate soaring birds that forage socially (Ruxton and Houston 2004, 
p. 433). Social foraging means the population is particularly 
susceptible to contaminated food resources, as a contaminated carcass 
can poison a large number of individuals in a single feeding (Green et 
al. 2004, pp. 796-800; Green et al. 2008, pp. 6-9; Finkelstein et al. 
2012, p. 11453; D'Elia and Haig 2013, p. 87).
    As birds with a large wingspan that use soaring and gliding flight, 
California condors can move long distances while expending minimal 
energy (see Pennycuick 1969, pp. 542-545; Ruxton and Houston 2004, p. 
435; Horvitz et al. 2014, pp. 676-678). Examples of exceptional flight 
distances include: California condor movements between the central and 
southern California flocks--a distance of approximately 150 miles (mi) 
(241 kilometers (km)) (e.g., USFWS 2017, pp. 20-21); a condor released 
at Pinnacles National Park flying to the southern Sierra Nevada and 
back--a one-way distance of approximately 249 mi (400 km) (USFWS, 
unpublished data); a condor released in the Sierra de San Pedro 
M[aacute]rtir in Baja California, Mexico, traveling north to San Diego 
County, a distance of approximately 140 mi (225 km) (Romo et al. 2012, 
p. 44); and observations of condors released in northern Arizona 
traveling to southern Wyoming, Colorado, and New Mexico, at distances 
of approximately 340 mi (547 km), 400 mi (643 km), and 325 mi (523 km), 
respectively. In addition, GPS telemetry data are now revealing that 
California condors in southern California are beginning to regularly 
travel 93-124 mi (150-200 km) away from core use areas (USFWS 
unpublished data). As the populations continue to grow, the number of 
long-distance flights is likely to increase.
    To date, nests have been concentrated in a relatively limited area 
around release sites when compared to exceptional flight distances. The 
farthest nest documented from release sites in each release area is 
approximately 47 mi (76 km) in central California, 57 mi (92 km) in 
southern California, 62 mi (100 km) in Arizona/Utah, and 15 mi (24 km) 
in Baja California. We expect that as flock size grows the population 
will continue to expand and nest sites will eventually be located 
farther from release sites.
    Seasonal shifts in movements to foraging grounds occur with changes 
in food availability, and perhaps as a result of social factors (e.g., 
traditional movements) (Meretsky and Snyder 1992, p. 328; Snyder and 
Snyder 2000, pp. 145-147; Hunt et al. 2007, pp. 85-87). There are also 
seasonal changes in home range, with larger home ranges in late summer 
and fall compared to late fall and early winter (Rivers et al. 2014a, 
pp. 497, 499).

Life Cycle

    Breeding California condors form pairs in late fall or early winter 
and visit various potential nest sites within their nesting territory 
in January and February (Finkelstein et al. 2015, Breeding). Once pairs 
are formed they tend to stay together year-round for multiple years 
until one member of the pair dies (Snyder and Snyder 2000, p. 19). 
However, the death of one member of a pair can trigger a chain reaction 
with multiple pairs switching mates. This situation can occur because 
each California condor that loses its mate represents a potentially 
more desirable mate to individuals of lower rank in the social 
hierarchy of the flock. Breeding California condors lay a single egg 
between late January and early April (Finkelstein et al. 2015, 
Breeding). The egg is incubated by both parents and hatches after 
approximately 53-60 days (Snyder and Snyder 2000, p. 19). California 
condor pairs that lose their egg early in the breeding season (February 
through mid-April) will generally lay a replacement egg (Snyder and 
Hamber 1985, p. 377). When a replacement egg is lost, it has 
occasionally been followed by a third egg (Finkelstein et al. 2015, 
Breeding).
    Both parents share responsibilities for feeding the nestling 
(Snyder and Snyder 2000, p. 19). Feeding, via regurgitation, usually 
occurs daily for the first 2 months, then gradually diminishes in 
frequency (Snyder and Snyder 2000, p. 197). As early as 6 weeks after 
hatching, California condor chicks leave the nest cavity but remain in 
the vicinity of the nest where they are fed by their parents (Snyder 
and Snyder 2000, p. 201). The chick takes its first flight at about 5.5 
to 6 months of age but does not become fully independent of its parents 
until the following year (Snyder and Snyder 2000, pp. 201-202). Parents 
occasionally continue to feed a fledgling even after it has begun to 
make longer flights to foraging grounds (Koford 1953, p. 103; Snyder 
and Snyder 2000, pp. 202-203).
    Because of the long period of parental care, it was formerly 
assumed that successful California condor pairs normally nested every 
other year (Koford 1953, pp. 22-23). However, this pattern can vary, 
depending mostly on the time of year that the nestling fledges. If a 
nestling fledges relatively early (in late summer or early fall), its 
parents can nest again in the following year, but late fledging may 
inhibit nesting in the following year (Snyder and Hamber 1985, pp. 377-
378; Snyder and Snyder 2000, p. 19).
    Once independent, juvenile California condors often associate with 
one another on the foraging grounds and join adults and other juveniles 
at communal roosts (Finkelstein et al. 2015, Breeding). In a study of 
the remnant wild population in southern California (1982-1987), 
Meretsky and Snyder (1992, pp. 324-325; 329-330) found that California 
condors in their first 2 years after fledging were generally limited to 
natal nest areas and adjacent foraging areas. Older juveniles would 
forage more widely, but it was not until age 4 or 5 that condors 
visited virtually all foraging and nesting areas within a given 
population. However, more recent data from the reintroduced populations 
show that fledglings under 1 year of age can be fully integrated into 
the flock, foraging hundreds of miles from natal or release areas and 
by 2 years of age some individuals have demonstrated the ability to 
cover the flock's entire range (USFWS, unpublished data). This 
difference between the remnant wild population in the 1980s and the 
current population is likely a product of the larger size of the 
current population, and the larger number of older California condors 
that are available to serve as mentors to recently fledged condors.

[[Page 15607]]

Demography and Threats

    California condors are long-lived birds. In captivity, they can 
live more than 50 years. Average age of first breeding is 8 years and 6 
months for females and 9 years and 10 months for males (Mace 2017, pp. 
240, 243). The oldest known breeding female was 38 years old (Mace 
2017, p. 239).
    Slow maturation and low reproductive rates in California condors 
mean that low mortality rates are necessary for populations to be 
stable or to grow (Mertz 1971, p. 448; Verner 1978, pp. 19-21; Meretsky 
et al. 2000, pp. 960-961). Demographic models indicate that annual 
adult mortality rates certainly must average <10 percent annually to 
achieve stable or increasing populations (Verner 1978, pp. 19-21; 
Meretsky et al. 2000, p. 961), and likely need to be <5 percent 
(Meretsky et al. 2000, p. 961; Cade 2007, p. 2129; Woods et al. 2007, 
p. 65; Walters et al. 2010, p. 974). Estimates of mortality rates in 
the first decade of the release program in California and Arizona--when 
individuals treated for lead poisoning were considered mortalities--
were between 17-35 percent, greatly exceeding the mortality rates 
needed for a self-sustaining stable population (Meretsky et al. 2000, 
p. 963). Currently, populations in the wild are only viable as a result 
of augmentation through ongoing captive-breeding and release efforts, 
in concert with intensive monitoring and management to reduce mortality 
(Green et al. 2008; Finkelstein et al. 2012, p. 11452; USFWS 2013, pp. 
27-30).
    The primary threat to the viability of the California condor is 
lead poisoning from spent ammunition left in gut-piles or carcasses of 
animals that condors feed upon (Meretsky et al. 2000, p. 963; Church et 
al. 2006, p. 6148; Cade 2007, entire; Woods et al. 2007, pp. 73-75; 
Green et al. 2008, p. 9; Walters et al. 2010, pp. 993-994; Finkelstein 
et al. 2012, pp. 11452-11453; Rideout et al. 2012, pp. 108-109; Kelly 
et al. 2015, pp. 395-398; Bakker et al. 2017, pp. 101-103). Without 
intensive management of the impacts from this threat, which includes 
periodic trapping for health exams, monitoring blood lead levels, and 
treatment if necessary, the wild populations would trend toward 
extinction (Woods et al. 2007, p. 65; Green et al. 2008, pp. 8-9; 
Walters et al. 2010, pp. 993-994; Finkelstein et al. 2012, pp. 11452-
11453). In the absence of this threat, California condor populations 
would likely grow and become self-sustaining, without the need for 
intensive management (Woods et al. 2007, p. 65; Green et al. 2008, p. 
9; Finkelstein et al. 2012, pp. 11452-11453).
    Several laws and voluntary programs to reduce the threat from lead 
ammunition have been enacted. The State of California instituted a 
restriction on the use of lead ammunition for hunting within the range 
of the California condor in southern and central California in July 
2008 (Ridley-Tree Condor Preservation Act 2008, entire). The geographic 
and regulatory scope of this restriction was expanded with Assembly 
Bill 711 (AB711) that was signed into law in October 2013. AB711 
amended section 3004.5 of the California Fish and Game Code, relating 
to hunting. The law, which restricts the use of lead ammunition for 
taking wildlife, has been phased in; the final phase, which went into 
effect in July 2019, enacted a State-wide ban of lead ammunition for 
all take of wildlife. Nevada also has a regulation mandating the use of 
nontoxic shot on all Nevada Wildlife Management Areas (NAC 503.183). In 
addition to these laws and regulations, voluntary lead-reduction 
programs are in place in California, Oregon, Nevada, Arizona, and Utah. 
While these voluntary programs vary by State, actions under these 
programs have included: (1) Surveys to understand attitudes toward lead 
reduction; (2) outreach to hunters at sportsman shows, hunter education 
classes, and in the field; (3) coordination with hunter constituency 
groups; and (4) targeted vouchers for free non-lead ammunition (Sieg et 
al. 2009, pp. 344-345; Chase and Rabe 2015, pp. 2-3; AGFD 2017, web 
page, UDWR 2017, web page, ODFW 2017, web page; Huntingwithnonlead.org 
2017, web page; nonleadpartnership.org, web page).
    Other threats to California condors include: Rangeland conversion, 
wind energy development, collision with and electrocution from 
powerlines, predation, disease, inadequacy of existing regulatory 
mechanisms, shooting, microtrash ingestion, pesticides, and habituation 
to humans. A full description of these threats, and efforts to abate 
them, are provided in our most recent status review for the California 
condor (USFWS 2013, entire).

Relationship of NEP to Recovery Efforts

    We published a California condor recovery plan in 1974 (USFWS 1975, 
entire), and revised the plan in 1980 (USFWS 1980, entire), 1984 (USFWS 
1984, entire), and 1996 (USFWS 1996, entire). To date, recovery efforts 
have focused on reintroduction and recovery in the southern portion of 
the species' historical range (see Captive Breeding and Reintroduction 
Efforts, above). Recovery criteria for removing the California condor 
from the endangered species list were not provided in the 1996 revision 
to the recovery plan, as its primary focus was keeping the species from 
going extinct. At the time the 1996 revised recovery plan was written, 
there were only 17 California condors in the wild (USFWS 1996, p. 9) 
and we could not anticipate at that time all actions that would be 
necessary for full recovery. We recently clarified why it remains 
impracticable to incorporate delisting criteria for the California 
condor in the recovery plan (USFWS 2019b). The overall strategy for 
recovery outlined in the 1996 recovery plan was to focus on: (1) 
Increasing reproduction in captivity to provide condors for release, 
(2) the release of condors to the wild, (3) minimizing condor mortality 
rates, (4) maintaining habitat for condor recovery, and (5) 
implementing condor information and education programs (USFWS 1996, p. 
21). While the recovery plan did not have delisting criteria, it 
included as criteria for reclassifying (or downlisting) to a threatened 
species an objective of establishing at least two, preferably more, 
self-sustaining disjunct wild populations in order to reduce the risks 
to the overall population and to facilitate genetic and demographic 
management (USFWS 1996, p. 24).
    The 1996 revised recovery plan does not provide specific recovery 
targets or actions for the Pacific Northwest, but our 1980 recovery 
plan recommended surveys of Oregon, Washington, and California to 
identify potential habitat for future releases into unoccupied portions 
of the historical range (USFWS 1980, p. 50). Recent habitat modeling 
has revealed large areas of potentially suitable nesting, roosting, and 
feeding habitats in the Pacific Northwest (D'Elia et al. 2015, pp. 95-
96). Although criteria for full recovery were not provided in our 
latest recovery plan revision (USFWS 1996, entire), increasing the 
global population of the California condor and expanding its geographic 
distribution among the ecosystems it once occupied are, on first 
principles, consistent with efforts to recover the species.
    An existing population model based on published demographic rates 
(Bakker et al. 2017, entire) was used to simulate statewide California 
condor population growth in California over the next 30 years (2018-
2048), assessing scenarios with and without the allocation of some of 
the available captive-bred individuals to a new geographically disjunct 
flock (Bakker and Finkelstein 2018, entire).

[[Page 15608]]

Preliminary model simulations suggest that allocating captive-bred 
individuals to a new, geographically disjunct flock, which is expected 
to have lower survival and reproduction compared to the existing 
flocks, may reduce the population growth of condors in California. 
Model simulations reinforce the importance of increasing captive chick 
production and releases to the wild. The number of chicks produced in 
the captive program and released to the wild has been variable over 
time, but continues to drive population growth in the wild due to the 
high chick and juvenile survivorship attainable in a captive setting 
and to ongoing mortality in the free-flying population combined with 
the long generational gap between chick stage and breeding age 
(approximately 6-8 years) in California condors (Finkelstein et al. 
2012, entire; Bakker et al. 2017, entire; Bakker and Finkelstein 2018, 
entire).
    The California Condor Recovery Program is currently proposing to 
increase the number of captive-produced condors for release into the 
wild, and would continue to allocate the number of chicks to each 
release site necessary to maintain positive population growth at each 
site, to the extent practicable. Continuing to grow the wild population 
of California condors while reestablishing them in an unoccupied 
portion of their historical range is consistent with our overall 
strategy to recover the species.
    In summary, an NEP in the Pacific Northwest would establish an 
additional population in the United States, beyond the minimum of two 
populations envisioned for downlisting to a threatened species. This 
population would contribute to the conservation of the species by: 
Further reducing the risk that any one catastrophic event would affect 
a large proportion of the species (increasing the population 
redundancy); increasing the global population of the species 
(increasing resiliency); and expanding the geographic distribution of 
the species among ecosystems (increasing representation by expanding 
the ecological settings in which the species occurs).

Is the experimental population essential or nonessential?

    When we establish experimental populations under section 10(j) of 
the Act, we must determine whether such a population is essential to 
the continued existence of the species in the wild. Although the 
experimental population will contribute to the recovery of the 
California condor, it is not essential to the continued existence of 
the species in the wild. California condors are currently distributed 
among three disjunct and intensively managed populations in California, 
Arizona and Utah, and Baja California, Mexico. Management at these 
sites includes: Monitoring individuals with VHF or GPS/GSM 
transmitters; biannual trapping for health screenings; vaccination for 
West Nile virus; aversive conditioning to power poles prior to release; 
chelation therapy to treat California condors with elevated blood-lead 
levels; and nest observations, entries, and interventions to maximize 
productivity in the wild (Walters et al. 2010, pp. 972, 976, 982-984; 
Romo et al. 2012, pp. 28-56; Southwest Condor Review Team 2017, pp. 4-
21; USFWS 2017, pp. 5-19). In addition, there are ongoing releases of 
captive California condors into each of the wild populations. Releases 
are carefully coordinated among sites to ensure a healthy age 
structure, sex ratio, and distribution of founder genomes (Ralls and 
Ballou 2004, pp. 221-225). As a result of the continued release of 
condors and the coordination among release programs, the populations of 
wild California condors continue to grow (USFWS 2018, p. 6).
    In addition to the three wild populations, there is also a sizable 
captive population at four breeding facilities, which are distributed 
in California, Oregon, and Idaho (see Biological Information, above). 
The breeding facilities are secure facilities, not open to the public, 
where California condors are kept under 24-hour surveillance by condor 
keepers or video cameras. The captive population is given extensive 
care and deaths and injuries are rare, with a captive annual survival 
rate after the first month of life of 0.989 percent (95 percent 
confidence interval: 0.984-0.992) (Bakker et al. 2017, p. 97). In 
addition, the geographic separation of the four breeding facilities 
protects the captive population from the threat of extinction due to a 
single catastrophic event.
    The captive population was formed with only 13 apparent genetic 
founders that comprised three genetic clans (Geyer et al. 1993, p. 573; 
Ralls and Ballou 2004, p. 219; Pryor and Ralls 2016, p. 3). Genetic 
management, which includes control of all captive matings, has been 
implemented to minimize the loss of remaining genetic diversity and 
ensure this remaining genetic diversity is well distributed among the 
captive-breeding facilities and reintroduction sites (Ralls et al. 
2000, p. 152; Ralls and Ballou 2004, p. 226; Pryor and Ralls 2016, p. 
2). California condors released within the experimental population 
would come from a mixture of the founder clans represented in the 
captive population and would not represent a unique genetic lineage of 
California condors. Therefore, loss of this population would not 
represent a substantive change in the genetic diversity or genetic 
viability of the worldwide population of California condors.
    This reintroduction project will further the recovery of the 
California condor by attempting to establish another wild population in 
an unoccupied portion of the species' historical range. However, for 
the reasons stated above, California condors released into the Pacific 
Northwest are not essential to the survival of the species in the wild. 
Therefore, as required by 50 CFR 17.81(c)(2), we find that the 
experimental population is not essential to the continued existence of 
the species in the wild, and we designate the experimental population 
in the Pacific Northwest as a nonessential experimental population 
(NEP).

Location and Boundaries of the NEP

    Section 10(j) of the Act requires that an experimental population 
be geographically separate from wild populations of the same species. 
Considering a number of factors (as described in detail, below), we 
drew the NEP area to include a portion of northern California, 
northwestern Nevada, and all of Oregon. The western boundary of the NEP 
is the Submerged Lands Act boundary line along the Pacific coast. The 
southern boundary of the NEP is formed by an east-west line from 
California's Submerged Lands Act boundary to Hare Creek; Hare Creek 
from the Pacific Ocean to its junction with California State Route 1; 
north to the junction of State Route 1 and State Route 20; east along 
California State Route 20 to where it meets Interstate 80; and 
Interstate 80 from its intersection with California State Route 20 to 
U.S. Route 95 in Nevada. The eastern boundary of the NEP is U.S. Route 
95 in Nevada to the State boundary of Oregon and then east and north 
along Oregon's southern and eastern boundaries, respectively. The 
northern boundary of the NEP is the northern State boundary of Oregon. 
All highway boundaries are inclusive of the entire highway right of 
way. See map below and in the Environmental Assessment (NPS et al. 
2018, Figure 2, p. 5).
    The last California condor specimen collected within the NEP area 
was in 1892 along Yager Creek in Humboldt County, California (Smith 
1916, p. 205; D'Elia and Haig 2013, pp. 39-46). Although there were a 
few reported

[[Page 15609]]

California condor sightings up to 1925 in the area we are proposing to 
designate an NEP, since then there have been no credible sightings of 
condors in the wild in this area, or anywhere north of San Francisco 
(D'Elia and Haig 2013, pp. 58-59). Given that almost all released 
California condors are actively tracked with electronic transmitters, 
we are confident that there are no wild condors in the NEP.
    The location of the primary reintroduction site is the Bald Hills 
of Redwood National Park, an area proximal to suitable nesting and 
feeding habitat. Ten potential release sites were identified by the 
Yurok Tribe, and the primary release site was selected following 
careful consideration of site suitability, logistics, threats and 
hazards, cultural resources, and suitability of adjacent lands (Yurok 
Tribe 2020, entire). The release site will be situated in grassland 
habitat above a redwood forest with sufficient topography to allow 
young California condors to more easily achieve flight. Redwood forests 
in the vicinity of the release site, as well as proximal mountain 
ranges (Oregon Coast Range, Klamath-Siskiyou Mountains, and the 
Northern Coast Range in California) are expected to provide ample 
roosting and nesting habitat. Inland valleys and mountaintop prairies, 
in conjunction with a proximal coastline, are expected to provide a 
mixture of sufficient terrestrial and marine feeding areas and food 
resources. Landscape-scale models indicate that the amount and 
characteristics of habitat in the region compare favorably to other 
portions of the historical range (D'Elia et al. 2015, pp. 95-96).
    In defining the experimental population boundary, we attempted to 
encompass the area where the population is likely to become established 
in the foreseeable future. The term ``foreseeable future'' appears in 
the Act in the statutory definition of ``threatened species.'' The Act 
does not define the term ``foreseeable future.'' However, our 
implementing regulations at 50 CFR 424.11(d) set forth a framework for 
evaluating the foreseeable future on a case-by-case basis. The term 
foreseeable future extends only so far into the future as we can 
reasonably determine that both the future threats and the species' 
responses to those threats are likely. In other words, the foreseeable 
future is the period of time in which we can make reliable predictions. 
While we use the term ``foreseeable future'' here in a different 
context (to establish boundaries for identification of the experimental 
population), we apply a similar conceptual framework. Analysis of the 
foreseeable future uses the best scientific and commercial data 
available and should consider the timeframes applicable to the relevant 
effects of release and management of the species and to the species' 
likely responses in view of its life-history characteristics. Data that 
are typically relevant to assessing the species' biological response 
include species-specific factors such as lifespan, reproductive rates 
or productivity, certain behaviors, and other demographic factors. For 
the purposes of this rule, we define the foreseeable future as 
approximately 20 years, the time horizon within which we can reasonably 
forecast California condor population expansion given the number of 
years of data we have on condor movements from release sites in 
southern and central California (25 years in southern California and 23 
years central California). We expect that the contribution of the 
experimental population toward recovery of the California condor will 
be evident during this time span, although we recognize that 
establishing a self-sustaining population of condors in the region may 
take longer given the species' extremely low reproductive rates. We 
established the experimental population boundary large enough to 
account for expansion over time as the introduced population begins to 
breed in the wild, and to assist in identifying any individuals 
belonging to the NEP. When possible, we used recognizable features on 
the landscape, legal land descriptions, or administrative boundaries to 
demark this experimental population boundary. We included the entire 
State of Oregon to ensure that any California condors originating from 
the releases at Redwood National Park and flying north into Oregon are 
recognized as members of the NEP and are covered by the NEP 
regulations.
    Information we considered in drawing our NEP boundary included 
California condor movement data from existing release sites, and the 
location of the closest existing condor population, as well as input 
from State wildlife agencies. Movement data indicate that, after 20 
years of releasing California condors, most individuals remain within 
approximately 124 mi (200 km) of their release site--although 
exceptional flight distances occasionally occur and the existing 
populations continue to expand as flock size increases. The closest 
California condor release site to the Bald Hills release site is at 
Pinnacles National Park, approximately 350 mi (563 km) to the south. 
The proposed release site is approximately 124 mi (200 km) from the 
nearest edge of the experimental population boundary, and the southern 
edge of the experimental population boundary is approximately 112 mi 
(180 km) from the northern extent of the closest endangered population 
of California condors. Thus, the southern boundary of the NEP 
approximates a mid-point between the nearest population in central 
California and the proposed release site at Redwood National Park. The 
farthest documented nesting pair of California condors from any release 
site since the inception of the captive-breeding program was 
approximately 62 mi (100 km), while most nests are within 47 mi (75 km) 
of their release site of origin. Given our definition of foreseeable 
future and the information from existing release sites, we anticipate 
that California condors initially released at Redwood National Park--
with the exception of occasional exceptional flights--would remain 
within the experimental population boundary over the first 20 years of 
reintroductions. If a reintroduction of California condors in northern 
California is successful, it is possible that some individuals from the 
NEP may eventually move outside of the NEP area. It is also possible 
that California condors from the other California release sites may 
enter this NEP. We expect that these movements, if they occur, would be 
infrequent in the foreseeable future given the size of the NEP, the 
NEP's distance from existing populations, and observed California 
condor movements at other release areas over the last two decades. 
Further, we find that the interaction of individuals among the NEP and 
existing endangered populations and the merging of these populations 
are even more unlikely to occur in the foreseeable future given the 
distance between the populations and the small number of California 
condors likely to occupy the NEP. Even if California condors 
occasionally moved into or out of the NEP, the presence of one or a few 
individual dispersing condors would not constitute a ``population'' and 
any individuals dispersing into or out of the experimental population 
area would be treated as if they were part of the population at the 
location where they are found (See Wyoming Farm Bureau Federation v. 
Babbitt, 199 F.3d 1224, 1234-6, FN 5 (10th Cir. 2000) (finding the 
Secretary reasonably exercised his management authority under section 
10(j) in defining the experimental wolf population by location)). Based 
on definitions of ``population'' used in other experimental population 
rules

[[Page 15610]]

(e.g., 59 FR 60252, November 22, 1994 (gray wolves), 71 FR 42298, July 
26, 2006 (Northern aplomado falcons)), we consider a population to 
require a minimum of two successfully reproducing California condor 
pairs over multiple breeding cycles. Using this definition of a 
population, the best available information suggests that the population 
of California condors formed from releases in Redwood National Park is 
likely to be wholly separate from other populations of California 
condors for the foreseeable future.

Likelihood of Population Establishment and Survival

    The best available scientific data indicate that the reintroduction 
of California condors into suitable habitat in Redwood National Park is 
biologically feasible and would promote the conservation of the 
species. Along with our numerous recovery partners, we have over 25 
years of experience breeding and releasing California condors into the 
wild at several release areas across various ecosystems. Release 
techniques are well established, as are protocols for managing released 
California condors. Based on our collective knowledge gained from these 
efforts, we anticipate California condors will become successfully 
established for the following reasons:
    (1) Landscape-scale modeling indicates the NEP may have some of the 
most extensive nesting, roosting, and feeding habitats remaining within 
the historical range in California, Oregon, and Washington (D'Elia et 
al. 2015, pp. 95-97). California condors are habitat generalists and 
have been successfully reintroduced to a variety of ecosystems, 
including the mountain foothills of southern California, coastal 
forests of central California, high desert and canyon lands in 
northeastern Arizona and mountainous areas in Baja California, Mexico. 
This species is flexible in its diet, eating carrion of many different 
species of wildlife and livestock. Therefore, we do not anticipate 
climate change effects on habitat will negatively impact our ability to 
reestablish a population of this species in the Pacific Northwest.
    (2) A site-specific habitat evaluation, which considered site 
suitability, logistics, threats and hazards, cultural resources, and 
suitability of adjacent lands, found the release site to have 
suitability ratings similar to existing release sites (Yurok Tribe 
2020, entire).
    (3) The causes for California condor extirpation from the region 
are either no longer active or are being addressed through a mixture of 
regulatory and proactive voluntary conservation measures (see 
Addressing Causes of Extirpation, below).
    (4) The extent of effects of existing and proposed actions and 
activities within the NEP on the reintroduced population have been 
evaluated in an environmental assessment and are compatible with 
conservation of the California condor (NPS et al. 2018, entire).
    (5) The reintroduced population will receive ongoing demographic 
support from a managed captive population and an active field 
monitoring and management program (Similar population support has 
allowed population growth and establishment at all of the other 
California condor release sites).
    (6) The reintroduced population will be integrated with the 
California Condor Recovery Program to ensure that California condors 
released in Redwood National Park have an appropriate sex ratio and 
age-structure and include representatives of the founder genomes.
    (7) There is broad institutional and partner support for a 
California condor reintroduction in Redwood National Park and Yurok 
ancestral territory.
    On June 14, 2016, a Memorandum of Understanding between 16 parties 
was finalized. The purpose of the MOU was to formalize an agreement to 
assess the potential to recover California condors in the Pacific 
Northwest and to work to seek funding to support that effort if it 
proved feasible. Signatories to the MOU included the U.S. Fish and 
Wildlife Service, National Park Service (NPS), Bureau of Land 
Management, Yurok Tribe, California Department of Fish and Wildlife 
(CDFW), California Department of Parks and Recreation (CDPR), Oregon 
Department of Fish and Wildlife (ODFW), Oregon Zoo, Sequoia Park Zoo, 
Ventana Wildlife Society, Oakland Zoo, Pacific Gas and Electric 
Company, Pacific Power Company, Green Diamond Resource Company, and 
Hells Canyon Preservation Council. In 2018, the U.S. Forest Service 
also signed this MOU.
    Based on all of these considerations, we anticipate that 
reintroduced California condors are likely to become established and 
persist within the NEP.

Addressing Causes of Extirpation

    Investigating the causes for decline and extirpation of California 
condors is necessary to understand whether the threats have been 
sufficiently curtailed such that reintroduction efforts are likely to 
be successful. Evaluation of various hypotheses for the extirpation of 
California condors in the Pacific Northwest revealed that secondary 
poisoning related to predator control and extermination campaigns, 
direct persecution, and possibly lead poisoning from spent ammunition 
were the primary causes (D'Elia and Haig 2013, pp. 119-122). Two of 
these primary drivers of regional extirpation--predator poisoning and 
direct persecution--are no longer the primary threats to the California 
condor. According to the most comprehensive assessment of California 
condor deaths from 1992 through 2009, of the 76 deaths where a 
definitive cause was determined, there were no confirmed cases of 
secondary poisoning related to predator control (although there was one 
possible case involving glycol toxicosis) and only five cases of 
condors directly persecuted by gunshot or arrow (Rideout et al. 2012, 
pp. 108, 110).
    Based on multiple lines of evidence, the primary threat to the 
recovery of the California condor is lead poisoning from spent 
ammunition (see Biological Information, above). Regulations banning 
lead ammunition for taking wildlife in California are in effect (see 
Biological Information, above). In addition, voluntary efforts to 
reduce lead exposure in wildlife are ongoing in Oregon and Nevada (see 
Biological Information, above). Finally, the reintroduction program 
will carefully monitor the population and conduct regular health checks 
to evaluate whether reintroduced California condors are being exposed 
to lead, the rate of exposure, and how this situation compares to other 
portions of the species' range. When necessary, California condors with 
elevated lead levels will be treated for lead poisoning. While the 
threat from lead ammunition is still present in the experimental 
population area, it is being addressed through a mixture of regulatory 
and proactive voluntary measures (see Biological Information, above); 
therefore, we will not request further regulation of lead ammunition 
for this experimental population. Sources of mortality will be 
carefully monitored, and if high mortality rates are preventing the 
establishment of a self-sustaining population, we will work with our 
conservation partners to implement additional voluntary measures to 
address threats, as we have at other California condor release sites. 
If a formal evaluation indicates the project is experiencing a 40 
percent or greater mortality rate over multiple years or released 
California condors are not finding food on their own, serious 
consideration will be given to terminating the project.

[[Page 15611]]

Release Procedures

    Release procedures at Redwood National Park are described in the 
environmental assessment (NPS et al. 2018, pp. 23-28) and would be 
similar to those at existing release sites. Procedures include: (1) The 
use of an onsite release pen where California condors are kept for a 
short period of time prior to release; (2) tracking of all released 
condors via telemetry (VHF and GPS/GSM); and (3) supplying condors with 
proffered food at the release site to allow for repeated trappings to 
monitor health and replace transmitters.
    In general, a new cohort of captive-reared California condors will 
be released annually. The size of each release group will depend on the 
number of California condors in captivity available for release, but 
annual releases will likely involve up to six condors. California 
condors hatched in captivity will be raised by their parents or a 
condor look-alike hand puppet until they are approximately 6 months to 
1 year old. They will then be placed with other California condors in a 
single large pen so they will form social bonds and undergo aversion 
training to power poles. The young California condors will be 
transported to the release site at Redwood National Park when they are 
approximately 1.5 to 2 years old. At the release site they will be 
placed in a flight pen and will remain there for an acclimation period 
of approximately 3 months.
    Biologists will remain near the release pen, observing the young 
California condors' behavior and guarding against predators or other 
disturbance. After the initial adjustment period, California condors 
will be released from the flight pen. Any release candidate showing 
signs of physical or behavioral problems will not be released. A small 
area of NPS land will be closed to recreational activity to protect the 
California condors in or around the release facility. Carcasses will be 
provided at the release site, as supplemental food for newly released 
California condors, and as necessary, to attract condors for periodic 
trapping to check their health and swap-out transmitters.
    All California condors released to the wild will be marked to allow 
identification of individuals. Current methods for doing this include 
placing electronic transmitters (e.g., Argos, GSM (Global System for 
Mobile communication), and VHF transmitters) and wing markers on the 
wings of each California condor. The movements and behavior of each 
California condor will be monitored remotely using electronic 
transmitters and ground observations. Aerial tracking will be used to 
find lost individuals, and telemetry flights will be coordinated with 
the appropriate land management agencies. Our methods for identifying 
and monitoring individuals will be adaptive and may change as 
technology improves.
    We will endeavor to maintain an even sex-ratio across a range of 
age-classes in the released population. Adult California condors unfit 
for release may be transported to the release site and kept in the pen 
as mentors for the acclimating cohort. Adjustments will be made in 
release cohort structure annually based on availability from captive-
breeding facilities, genetics, sex-ratio, and age.

Donor Stock Assessment and Effects on Donor Population

    The donor population for the reintroduction of California condors 
to Redwood National Park is the captive population of California 
condors. Although the captive population is located at four breeding 
facilities, these facilities cooperate to manage the entire wild 
population and captive population as a single entity, exchanging 
California condors and condor eggs among the facilities as necessary 
for population and genetic management (Ralls and Ballou 2004, p. 216).
    As of December 2019, there were 181 California condors in 
captivity, and the size of the captive population has been relatively 
stable over the last 5 years, with end-of-year counts ranging from 167 
to 181 during this time period (USFWS 2020, p. 5). With the assistance 
of the captive-breeding program, the total population of California 
condors increased from 370 condors in 2010 to 518 condors in 2019 
(USFWS 2020, p. 5).
    The donor population is carefully managed to ensure its long-term 
viability. Annual reviews of breeding, captive pairings, genetic 
health, and demographic factors are undertaken to ensure that captive-
releases will not be detrimental to the stability of the captive flock. 
In addition, the captive-breeding program has capacity to pair 
additional captive California condors to increase reproductive output 
as they become available for breeding and to replace senescent condors. 
This could be done through multiple clutching, the use of non-breeding 
adults to serve as foster parents, and/or puppet rearing. Given the 
careful management of the donor population, the ability to increase its 
productivity, and the relatively small number of California condors 
that will be released at Redwood National Park annually, impacts to the 
donor population are expected to be negligible.

Management

    The Service, NPS, and the Yurok Tribe will plan and manage the 
reintroduction of California condors at Redwood National Park. In 
addition, these agencies will carefully collaborate on releases, 
monitoring, condor care and behavior management, nest observations and 
interventions, coordination with landowners and land managers, public 
awareness, and other tasks necessary to ensure successful 
reintroduction of the species (Yurok Tribal, 2020, entire). A few 
specific management considerations related to the experimental 
population are addressed below.
    (a) Incidental Take: Experimental population special rules contain 
specific prohibitions and exceptions regarding the taking of individual 
animals. These special rules are compatible with most routine human 
activities in the expected reestablishment area. Section 3(19) of the 
Act defines ``take'' as ``to harass, harm, pursue, hunt, shoot, wound, 
kill, trap, capture, or collect, or to attempt to engage in any such 
conduct.'' ``Incidental take'' is further defined as take that is 
incidental to, and not the purpose of, the carrying out of an otherwise 
lawful activity. By adopting the 10(j) rule, most incidental take of 
California condors within the experimental population area is allowed, 
provided that the take is unintentional and not due to negligent 
conduct. However, habitat alteration (e.g., removing trees, erecting 
structures, altering the nest structure or perches near the nest) or 
significant visual or noise disturbance (e.g., tree felling, chainsaws, 
helicopter overflights, concrete cutters, fireworks, explosives) within 
656 ft (200 m) of an occupied nest are prohibited. Excluded from this 
prohibition are emergency fuels treatment activities by Federal, State, 
and local agencies and Tribes to reduce the risk of catastrophic 
wildfire and emergency response services. Activities such as ranching 
and use of existing roads and trails within the 656-ft (200 m) buffer 
area around an occupied nest would not be considered a significant 
visual or noise disturbance. For the purposes of this rule, an occupied 
California condor nest is defined as a nest that is: (1) Attended by a 
breeding pair of condors, (2) occupied by a condor egg, or (3) occupied 
or attended by a <1-year-old condor.
    The 656-ft (200 m) buffer is meant to serve to minimize visual and 
auditory impacts associated with human activities near nest sites. We 
chose a 656-ft (200 m) buffer after considering

[[Page 15612]]

buffer distances used for other raptors, which varied widely from 162 
to 5,249 ft (50-1,600 m) (Richardson and Miller 1997, pp. 635-636; 
Romin and Muck 2002; USFWS 2007, p. 13), as well as past 
recommendations on buffer distances for California condor nests, which 
ranged from 0.5 to 1.5 mi (0.8-2.4 km) (Carrier 1973, pp. 71-73). This 
variation is likely the result of differences in environmental setting, 
species-specific responses, status of the species at the time of the 
recommended buffer, the nature of the disturbance, and the purpose of 
the buffer. It is important to note that historical California condor 
buffer distances of 0.5 to 1.5 mi (0.8-2.4 km) were based on anecdotal 
observations of a small number of condor nests in a declining 
population, and were necessarily conservative given the context of a 
nearly extinct species. The nest buffer for this rule is smaller than 
those earlier recommendations because of new information suggesting 
that nesting California condors may be more tolerant of disturbance 
than previously believed (see below). We also accounted for the fact 
that we are establishing this population as a nonessential experimental 
population. Therefore, our buffer distance around nests may be less 
conservative than our recommended buffer distances from nests where 
California condors are listed as endangered.
    While species-specific responses to disturbance have not been 
formally studied for the California condor, observations in the 1950s 
and 1960s found that once a condor nest is started, it will not be 
abandoned unless the egg or chick is lost or the parents killed (Sibley 
1969, p. 8). In addition, recent observations have documented 
successful nests within 0.5 mi (0.8 km) from active oil and gas 
operations and within 656 ft (200 m) of busy highways, hiking trails, 
and forestry practices such as operating chainsaws and chippers (A. 
Welch, NPS, pers. comm. 2015). One nest in a giant sequoia tree was 
successful despite being ``right on the edge'' of a clearcut operation 
(which ceased only 3 weeks prior to egg laying) and only about 656 ft 
(200 m) from, and in direct view of, an intermittently used dirt road 
(Snyder et al. 1986, p. 238).
    Although the best available information suggests that California 
condors may not be as susceptible to disturbance as we thought in the 
1960s-1980s, flushing of condors from nests has been documented due to 
disturbance and this activity has the potential to result in the egg 
breaking if the adult that is flushed is incubating the egg (Sibley 
1969, p. 8). It is also possible that prolonged or repeated 
disturbances may cause nest failure (Sibley 1969, p. 15). To minimize 
the chances of nest or egg destruction and to preserve the structural 
integrity of habitat around nests while minimizing impacts to 
stakeholders, we are prohibiting habitat alteration or significant 
visual or noise disturbance within 656 ft (200 m) of occupied nests, 
with the exceptions noted above.
    Existing and proposed activities and land uses surrounding the park 
that could potentially result in incidental take include wind power, 
utility transmission lines, mining, commercial timber production, 
ranching operations, and recreational activities (NPS et al. 2018). As 
noted above in our evaluation of the likelihood of population 
establishment and survival, we determined that the extent of effects of 
these activities within the NEP is compatible with conservation of the 
California condor. We expect few restrictions on these activities 
because most incidental take, including take associated with lead 
ingestion, is not prohibited. Some activities, such as those associated 
with habitat alteration or significant visual or noise disturbance 
within 656 ft (200 m) of an occupied nest, would be prohibited, as 
described above. However, because (1) the number of individuals 
initially released would be small, (2) California condors nest only on 
cliffs and in large tree cavities, (3) California condors tend to nest 
in less accessible and remote areas, and (4) the nests would be 
dispersed rather than concentrated in a particular area, we expect 
impacts to existing and proposed activities to be minimal (NPS et al. 
2018). For the reasons stated above, it is unlikely that a condor would 
nest within areas with ongoing timber harvest operations, as only about 
0.5 percent of harvestable timber on private lands within the study 
area are likely to contain suitable nesting trees. (NPS 2018). Once the 
condor chick has fledged, activities could resume, so any prohibitions 
on activities would be temporary in nature.
    (b) Interagency Consultation: For purposes of section 7 of the Act, 
section 10(j) of the Act and our regulations (50 CFR 17.83) provide 
that nonessential experimental populations are treated as species 
proposed for listing under the Act except on National Park System and 
National Wildlife Refuge System lands, where they are treated as 
threatened species for the purposes of section 7 of the Act.
    (c) Special Handling: USFWS, NPS, CDPR, CDFW, ODFW, Nevada 
Department of Wildlife (NDOW), and Yurok Tribe Natural Resource 
Division employees, and authorized agents acting on their behalf, may 
handle California condors for scientific purposes; to relocate or haze 
California condors to avoid conflict with human activities; for 
recovery purposes; to aid sick or injured California condors; and to 
salvage dead California condors. However, non-Service or other non-
authorized personnel will need to acquire permits from the Service and 
the appropriate State or Tribal agency for these activities. Protocols 
for management and monitoring have been developed based on decades of 
experience from releasing condors in other areas (Yurok Tribe 2020, 
entire). Management and monitoring practices covered by these protocols 
include holding and releasing condors, monitoring, condor care and 
behavior management, nest observations and interventions, and other 
tasks necessary to ensure successful reintroduction of the species 
(Yurok Tribe 2020, entire). These protocols are designed to be adaptive 
and will be updated periodically as new information is acquired. 
Management and monitoring activities (see Yurok Tribe 2020) by any 
employee or agent of the Service, National Park Service, Yurok Tribe 
Natural Resource Division, CDPR, CDFW, NDOW, or ODFW who is designated 
and trained for such purposes, when acting in the course of official 
duties, will be exempt from take prohibitions.
    (d) Public Awareness and Cooperation: During January 2017, in 
cooperation with the Yurok Tribe and Redwood National Park, we 
conducted five NEPA scoping meetings on the proposed action of 
reintroducing California condors to the Pacific Northwest, with the 
possibility of designating the reintroduced population as an NEP. We 
notified a comprehensive list of stakeholders of the meetings including 
affected Federal and State agencies, Native American Tribes, local 
governments, landowners, nonprofit organizations, and other interested 
parties. The comments we received were included in the formulation of 
alternatives considered in the NEPA process, and were considered in 
formulating proposed experimental population regulations for California 
condors within the NEP. We opened a 60-day comment period on our 
proposed regulations and EA, with another round of notifications to our 
comprehensive list of stakeholders. We also held public meetings in 
Portland, OR, Medford, OR, Klamath, CA, and Arcata, CA during the 
public comment period.

[[Page 15613]]

Monitoring and Evaluation

    In cooperation with conservation partners, we will monitor 
movements, habitat use, and survival of all released California condors 
(NPS et al. 2018, pp. 23-28). Monitoring individual movements will 
allow field staff to identify potential problem-behaviors and to 
capture, relocate, or haze individual California condors for their 
safety. It will also allow us to detect any California condors that 
move outside of the experimental population area. Trapping will occur 
at the release site to allow for hands-on physical exams of 
individuals, replacement of faulty or aging transmitters, marking 
growing feathers, sampling feathers marked previously for lead history 
construction, and drawing blood for immediate testing of circulating 
blood lead levels and laboratory analysis for other contaminants of 
interest including, but not limited to, organophosphates and 
anticoagulant rodenticides. We will also attempt to determine the 
cause-of-death for all condor mortalities so we can look for emergent 
patterns and evaluate whether additional management interventions are 
necessary.
    Annual reports that summarize monitoring and management activities 
will be collaboratively developed by the Yurok Tribe, NPS, and USFWS. 
We will evaluate the reintroduction program to determine whether to 
continue or terminate reintroductions every 5 years as part of our 5-
year status review for the species.

Summary of Comments and Recommendations

    In the proposed rule published on April 5, 2019 (84 FR 13587), we 
requested that all interested parties submit written comments on the 
proposal by June 4, 2019. In addition, in accordance with our joint 
policy on peer review published in the Federal Register on July 1, 1994 
(59 FR 34270) and updated guidance issued on August 22, 2016 (USFWS 
2016, entire), we solicited peer review of our proposed rule from three 
knowledgeable individuals with scientific expertise in California 
condor ecology and management. We received responses from two of the 
peer reviewers. We also contacted appropriate Federal and State 
agencies, Tribes, scientific experts and organizations, and other 
interested parties and invited them to comment on the proposal. In 
addition, on May 7-9, 2019, we held public meetings on the proposal in 
Portland, OR; Medford, OR; Arcata, CA; and, Klamath, CA.
    We reviewed all comments received from the public, States, Tribes, 
and peer reviewers for substantive issues and new information regarding 
the establishment of an experimental population of California condors 
in the Pacific Northwest. Substantive comments are addressed in the 
following summary and have been incorporated into the final rule as 
appropriate. Any substantive changes incorporated into the final rule 
are summarized in the Summary of Changes from the Proposed Rule 
section, below.

Peer Review Comments

    In accordance with our peer review policy published on July 1, 1994 
(59 FR 34270), we solicited expert opinion from three knowledgeable 
individuals with scientific expertise in the species' biology, habitat, 
and raptor reintroductions in general. We received responses from two 
of the peer reviewers.
    Both peer reviewers expressed support for the reintroduction with 
an associated 10(j) rule and agreed the action is likely to contribute 
to the conservation of the species. We incorporated specific updated 
information, comments, and suggestions from peer reviewers into the 
final rule as described in our responses, below.
    Comment: One peer reviewer pointed out that, in our proposed rule, 
we stated that predator-poisoning was no longer a primary threat to 
condors. The reviewer notes that another form of poisoning, from 
anticoagulant rodenticides, remains a serious concern for wildlife in 
northern California and may pose a greater threat than in central and 
southern California condor populations.
    Response: Predator-poisoning campaigns targeting large predators, 
like gray wolves and grizzly bears, are fundamentally different from 
the use of anticoagulant rodenticides that are primarily targeting 
small rodents. Nevertheless, we acknowledge that condors released in 
northern California may be exposed to rodenticides. We do not yet know 
the rate of exposure or whether this exposure will have a significant 
effect on condor demographic rates. It is currently unclear whether 
exposure rates will be higher, lower, or the same as observed in other 
parts of the condor's range, or whether their exposure rates will be 
comparable to exposure rates in other surrogate avian scavengers. As 
stated in the final rule, we will be conducting regular physical exams 
of condors and will attempt to determine cause-of-death for all condors 
that die and whose bodies are available for necropsy. If exposure to 
anticoagulant rodenticides is a significant factor affecting population 
growth, we will adapt our management accordingly.
    Comment: One peer reviewer noted that, in our proposed rule, we 
mention the lead ammunition ban in California and the efforts being 
taken in Oregon to get hunters to voluntarily switch to non-lead 
alternatives. They asked whether Nevada, part of which is included in 
the NEP boundary, would be undertaking any outreach for voluntary 
effort to curb lead ammunition use.
    Response: NDOW has implemented some voluntary measures to encourage 
hunters to switch to non-lead ammunition. In 2015, NDOW collaborated 
with the North American Non-lead Partnership to train hunter education 
instructors about non-lead ammunition. Non-lead ammunition outreach is 
now included in all hunter education training in Nevada. In addition, 
Nevada also has a regulation mandating the use of nontoxic shot on all 
Nevada Wildlife Management Areas (NAC 503.183).
    Comment: One peer reviewer noted that the nest buffer of 200 m is 
somewhat less conservative that what has previously been recommended, 
but, given the evidence presented and the fact that this is being 
designated as an NEP, they thought that the buffer size was a 
reasonable starting point. This reviewer suggested providing a 
mechanism for expanding the buffer, under certain circumstances. The 
other peer reviewer stated that the 200 m buffer around nests seemed 
risky. They suggested starting with a larger buffer, with the option of 
making it smaller in certain circumstances.
    Response: The 656 ft (200 m) buffer distance around occupied nests 
is intended to provide some protection to condor eggs and nestlings. We 
recognize that, in certain situations, noise or habitat disturbance 
outside of this buffer may cause harassment, or even harm, to an 
individual condor. We expect these instances to be extremely rare given 
the small number of anticipated breeding condors in the foreseeable 
future and the vastness of the landscape they will occupy. For the 
reasons articulated in this final rule (see Management, above), we find 
that a 656 ft. (200 m) buffer distance provides a reasonable balance 
between protection of condors and limiting the impact of this 
reintroduction effort on landowners.
    Comment: One peer reviewer asked about the timing of our program 
review and how that relates to the timing of the Service's 5-year 
status review of the species. As the last California condor 5-year 
review was completed in 2013, they were concerned that our review 
periods would not be aligned.

[[Page 15614]]

    Response: We will informally review the status of the 
reintroduction program on an annual basis. We intend to release key 
information from this informal annual review (e.g., population size, 
number of releases, number of deaths) to the public. Our formal status 
review of the reintroduction program, where we will assess whether we 
should continue or discontinue the reintroduction program in the 
Pacific Northwest, will likely occur within the first 5 years of the 
program. The review cycles will be aligned from that point forward. 
Based on our experiences releasing California condors in other areas, 
we caution that evaluating whether or not the program is successful--
and therefore, whether it should continue--will take at least two 
decades (i.e., several 5-year review cycles).
    Comment: One peer reviewer suggested that we should provide 
mechanisms for cancelling the program if a sufficient number of condors 
are killed or lost for reasons that cannot be alleviated due to the 
experimental NEP status.
    Response: As stated in the proposed rule, and in this final rule, 
if a formal evaluation indicates the project is experiencing a 40 
percent or greater mortality rate over multiple years or released 
California condors are not finding food on their own, we would evaluate 
options, including discontinuing releases, capturing and removing 
condors from the NEP area, and whether to remove the NEP designation 
and regulations. If we proposed removal of the regulations, we would 
provide an opportunity for public review and comment.
    Comment: One peer reviewer expressed concern over whether 
establishing a new population would impact the viability of existing 
populations. They also asked us to describe how the captive facilities 
will increase production and questioned whether funding and support 
would be available to accomplish that work.
    Response: In our proposed rule, and in this final rule, we provide 
information on a preliminary demographic analysis that shows existing 
populations are likely to continue to grow even when breeding 
facilities are producing California condor chicks at less than existing 
capacity. The condor program has a long history of cooperation among 
partner institutions, and we have broad support among these 
institutions for establishment of a new release site in the Pacific 
Northwest. Likewise, the condor program is funded by a wide variety of 
partners and sources which are expected to continue to be able to 
support the existing breeding facilities capacity. Decisions on 
allocation of condor chicks are made in collaboration with these 
partner institutions and geneticists. Given the available information 
on condor demography and the strength and longevity of our 
partnerships, we are confident that captive-breeding facilities will 
continue to produce sufficient numbers of California condors to ensure 
the viability of existing populations and the success of a new 
reintroduction program in the Pacific Northwest.
    Comment: One peer reviewer stated success of the reintroduction 
program was not defined. They requested that we included an explicit 
definition of success or remove the term from the final rule.
    Response: The ultimate goal of any conservation reintroduction is 
to establish a self-sustaining wild population. We will evaluate, every 
5 years, whether the program is progressing toward achieving that goal. 
Based on our experience, estimates of mortality rates in the first 
decade of the release programs at existing sites in California and 
Arizona were between 17-35 percent. Since we expect it will take many 
years to achieve our ultimate goal of a self-sustaining wild 
population, we will consider success to be the continued progress 
toward achieving that goal. As stated in the final rule, if we observe 
a 40 percent or greater mortality rate over multiple years, or released 
California condors are not finding food on their own, serious 
consideration will be given to terminating the project.
    Comment: One peer reviewer asked whether there might be threats 
unique to northern California or Oregon, that are not threats in the 
current range of the California condor.
    Response: We are not aware of any threats to the California condor 
that are unique to the Pacific Northwest. We will closely monitor the 
health of released condors and address any novel threats, should they 
emerge.
    Comment: One peer reviewer stated that he thought the scientific 
and biological components of the proposed rule were excellent and 
clearly described. He also provided several technical corrections and 
edits related to condor biology and management.
    Response: We thank the reviewer for his comments and, as 
appropriate, have incorporated corrections.

Public Comments

    Comment: Condors should be removed from the field if designation of 
a nonessential population changes recreational activities that were 
legal at the time of the designation, specifically hunting and 
recreational shooting. Other activities that should be protected in 
this manner include ranching, timber harvest activities, mining, 
environmental remediation and restoration, power operations, 
transportation for both inter- and intra-state commerce, currently in-
place endangered species recovery plans, and housing development in 
cities. Commenters suggested that removing condors from the field 
should also be included if a sufficient number of individuals are lost 
during the program.
    Response: This rule exempts almost all incidental take of 
California condors. Significant noise or visual disturbance or habitat 
alteration within 656 ft (200 m) of occupied nests are prohibited. 
Excluded from this prohibition are emergency fuels treatment activities 
by Federal, State, and local agencies and Tribes to reduce the risk of 
catastrophic wildfire and emergency response services. Activities such 
as ranching and use of existing roads and trails within the 656 ft (200 
m) buffer area around an occupied nest would not be considered a 
significant visual or noise disturbance. Thus, this rule provides 
substantial assurances that there will be minimal (if any) impacts to 
the activities the commenter mentions. As stated in the proposed rule, 
and in this final rule, if a formal evaluation indicates the project is 
experiencing a 40 percent or greater mortality rate over multiple years 
or released California condors are not finding food on their own, 
serious consideration will be given to terminating the project.
    Comment: Commenters asked for clarification on how the 10(j) rule 
would address condors that leave the NEP area. One commenter suggested 
that the rule should require condors that leave the designated NEP 
boundary to be recaptured and returned, which would address the 
requirement that this population be geographically disjunct from other 
populations and result in better survival of birds that leave the NEP 
area.
    Response: California condors that fly outside of the NEP area will 
be evaluated on a case-by-case basis. We do not require the relocation 
of condors that leave the NEP area. We will consider recapture if a 
condor moves outside of the NEP and is observed--by an individual 
trained in condor biology and behavior--exhibiting signs of illness, 
obvious distress, or exhibits behavior indicating it is at increased 
risk of harm. While this population is likely to be wholly separate 
from other condor populations for the foreseeable future, we do not 
intend to actively

[[Page 15615]]

preclude the eventual connectivity of condor populations.
    Comment: Commenters stated that the 10(j) designation should 
eliminate the proposed exemptions for electric utilities and wind farms 
because these companies could use other resources/structures (e.g., 
geofencing) to meet the 10(j) requirements. Commenters also stated that 
the voluntary actions undertaken by the utility owners may not be 
adequate to protect the NEP.
    Response: The primary reason to designate a population as 
experimental is to engender support for reintroducing an endangered 
species by more surgically applying the necessary protections of the 
ESA. Based on known mortalities in other portions of the condor's 
range, deaths from electric utilities and wind turbines are not the 
primary threats to condor demographic rates. We will work with electric 
utilities and wind farm developers and operators to minimize and avoid 
impacts to condors. As noted in the proposed rule, PG&E has developed 
and is implementing a plan to minimize take of condors throughout the 
range of the species. The Service is working with wind energy companies 
in other parts of the species' range to minimize risk of condor 
collision with turbines.
    Comment: Commenters stated that the 10(j) rule should increase the 
level and enforcement of penalties.
    Response: Section 11 of the ESA addresses civil and criminal fines 
and penalties associated with violations of the provisions of the ESA 
and permits issued under the ESA. Any enforcement actions under the ESA 
will be subject to the maximum fines and penalties outlined in this 
statute, as those amounts have been adjusted pursuant to Federal law. 
The current penalty amounts are in 50 CFR 11.33, as adjusted this year 
(85 FR 10310, February 24, 2020). Enforcement actions and any ensuing 
penalties for violations of the ESA are based on the facts of each 
case.
    Comment: The California condor should not be established as an NEP 
without assurances that hunting and recreational shooting would 
continue. Commenters indicated that a ``special rule'' should be in 
place to ensure that hunting and/or recreational shooting are not 
affected.
    Response: Incidental take of California condors associated with 
legal and non-negligent hunting and recreational shooting is not 
prohibited within the NEP, provided such take is unintentional and non-
negligent. Habitat alteration and significant visual and noise 
disturbance within 656 ft (200 m) of an occupied nest is prohibited. 
Excluded from this prohibition are emergency fuels treatment activities 
by Federal, State, and local agencies and Tribes to reduce the risk of 
catastrophic wildfire and emergency response services.
    Comment: The 10(j) rule as written is too permissive and should be 
revised to start with full protection and note where protections do not 
apply.
    Response: ESA section 10(j) rules are intended to promote recovery 
of threatened and endangered species, while reducing the impact of 
reintroductions on stakeholders. For the reasons articulated in the 
preamble (see Management, above), we find that the special regulations 
will provide the appropriate balance of species protection and reduced 
impact to stakeholders.
    Comment: Commenters expressed concern that reducing protections for 
the California condor would establish a new baseline for policymaking 
in the future.
    Response: We evaluate the need for an experimental population 
designation and associated 10(j) rules on a case-by-case basis. After 
carefully reviewing the best available information and coordinating 
with our State and Tribal partners, Federal land managers, local 
landowners, and other conservation partners, we have determined that a 
California condor reintroduction in this area would not have the 
necessary support without an experimental population designation. This 
is not the first nonessential experimental population of the California 
condor and, therefore, is not precedent-setting. Furthermore, nothing 
in this rule establishes a new baseline for future policy decisions on 
achieving condor recovery as this rule applies only to this population.
    Comment: Several commenters were concerned about potential impacts 
on land use and socioeconomics in Nevada. One commenter suggested that 
take of condors should not be deemed negligent where there have been 
infrequent or inconsistent occurrences of the species in a given 
project area or where a given instance of take is the first occurrence.
    Response: Although the northwestern corner of Nevada is included in 
the NEP boundary, the best available information on habitat suitability 
and landscape connectivity suggests that this area is unlikely to 
become occupied by condors in the foreseeable future. We included 
northwestern Nevada within the NEP to provide assurances to Nevada that 
in the unlikely event California condors travel to this area, they 
would be treated as nonessential experimental animals under the Act. 
While we do not expect condors to occupy northwestern Nevada within the 
foreseeable future, we are exempting incidental take from otherwise 
lawful activities within the NEP, including this area, as long as such 
take is unintentional and non-negligent. We decline to exempt negligent 
take, even if the species is infrequently observed in an area. 
California condors are easily identified and should not be mistaken for 
any animal that can be legally harvested, killed, captured, wounded, or 
harassed. Habitat alteration or significant visual or noise disturbance 
within 656 ft (200 m) of an occupied nest are prohibited. Excluded from 
this prohibition are emergency fuels treatment activities by Federal, 
State, and local agencies and Tribes to reduce the risk of catastrophic 
wildfire and emergency response services. These exemptions and 
regulations are expected to minimize impacts on land use and 
socioeconomics in the remote event condors occupy northwestern Nevada.
    Comment: One commenter requested clarification on the proposed 
timeline of the stipulations in the rule, specifically asking about the 
20-year timeframe noted in the rule.
    Response: This rule will remain in place unless it is rescinded 
through formal rulemaking. The 20-year timeframe in this rule refers to 
the time horizon over which we can reasonably forecast California 
condor population expansion to define the boundary of the experimental 
population. It also provides a time horizon over which we analyzed the 
likelihood the population will become established and survive in the 
NEP. We chose 20 years based on the number of years of data we have on 
condor movements from release sites in southern and central California. 
We expect that the contribution of the experimental population toward 
recovery of the California condor will be evident during this time 
span, although we recognize that establishing a self-sustaining 
population of condors in the region may take longer given the species' 
extremely low reproductive rate.
    Comment: One commenter asked for further clarification on how a 
decision would be made to remove condors from the field in the event 
that the FWS was compelled by a court order to change the protection 
status of the population, asking if it would be based on votes of 
participating parties or would MOU signatories have any type of veto 
power.
    Response: While FWS would ultimately be responsible for determining 
how to proceed and ensuring any changes in the legal status and/or 
removal of this population of

[[Page 15616]]

California condors are made in compliance with any applicable Federal 
rulemaking and other procedures, we would carefully consider input from 
partners. The MOU signatories include a range of agencies, conservation 
partners, and stakeholders with interests that represent a wide variety 
of interests associated with land management activities. FWS would meet 
with all of the 17 partners to the MOU to discuss the options on how to 
proceed, including the option of attempting to capture and relocate all 
the condors in the wild. We would discuss the consequences of each 
option with the MOU partners and would make a fact-specific assessment 
of how to proceed based on the information at that time, including 
whether there was general agreement from the MOU partners that the 
condors should remain in the wild. FWS does not intend to hold a formal 
vote, and none of the MOU signatories would hold veto power.
    Comment: Commenters requested that additional activities exempt 
from take prohibitions be specifically stated in the rule, including 
existing authorized uses of private and public lands; administrative 
and emergency functions carried out by local, State, or Federal 
government; and normal agricultural practices.
    Response: We have clarified that the activities provided by the 
commenters are also exempt from incidental take prohibitions, provided 
the take is unintentional and the activities are lawful. Please see the 
Management section above for these changes.
    Comment: Commenters requested that our 10(j) rule include more 
specific language stating that the construction, operation, and 
maintenance of wind energy and electric transmission facilities would 
not constitute take. To address this concern, they suggested paragraph 
(i)(2) be amended to remove the term ``non-negligent'' and to 
specifically add electric transmission and distribution and wind 
generation facilities.
    Response: Construction, operation, and maintenance of wind energy 
and electric transmission facilities may result in take of California 
condors. However, by issuing this rule, we are exempting such 
incidental take (provided it is lawful and non-negligent) from the 
prohibitions of the ESA. We decline to remove the term ``non-
negligent'' as we do not intend to exempt negligent take from the 
prohibitions of the ESA.
    Comment: One commenter asked that the phrase ``unavoidably and 
unintentionally'' used in the 10(j) rule be further clarified. The 
following clarification was proposed: ``[t]ake that occurs unavoidably 
and unintentionally is that which occurs despite reasonable care and is 
not done on purpose.''
    Response: The commenter's interpretation of ``unavoidably and 
unintentionally'' is consistent with how we intend its use in this 
rule. We have updated the final rule to include this clarification.
    Comment: Commenters noted concern with how take is defined in the 
10(j) rule and felt that how it is defined would open various parties 
to charges of non-permitted incidental take. They noted that logging 
companies, NPS, and others could be exposed to liability under the 
current definition because the rule is not clear on the complex 
interactions of terrain as part of the current regulatory overlay of 
different species and habitat conservation plans.
    Response: By adopting the 10(j) rule, most incidental take of 
California condors within the experimental population area is allowed, 
provided that the activity is otherwise lawful and the take is 
unintentional and not due to negligent conduct. Habitat alterations and 
significant visual or noise disturbance within 656 ft (200 m) of an 
occupied nest are prohibited. Excluded from this prohibition are 
emergency fuels treatment activities by Federal, State, and local 
agencies and Tribes to reduce the risk of catastrophic wildfire and 
emergency response services. Activities such as ranching and use of 
existing roads and trails within the 656 ft (200 m) buffer area around 
an occupied nest would not be considered a significant visual or noise 
disturbance.
    Comment: Some commenters suggested that the proposed 10(j) boundary 
is too large and that it should be reduced to the Klamath Siskiyou 
bioregion. They noted that because of the time it would take birds to 
leave the currently proposed region, they should have the full 
protection of the ESA once they leave.
    Response: Experimental population boundaries are generally drawn to 
encompass the likely movements of the reintroduced population within 
the foreseeable future. However, they do not need to tightly 
circumscribe that area, and boundaries may be drawn larger to provide 
assurances to concerned stakeholders that individuals from a 
reintroduced experimental population will not be treated as a fully 
ESA-listed species. Given long-distance movements observed at other 
release sites, it is unlikely that condors reintroduced to Redwood 
National Park will limit their movements to the Klamath-Siskiyou 
bioregion in the foreseeable future.
    Comment: Commenters requested that the application of the 10(j) 
stipulation in the Sheldon National Wildlife Refuge be clarified.
    Response: Although the northwestern corner of Nevada (where Sheldon 
National Wildlife Refuge is located) is included in the NEP boundary, 
the best available information on habitat suitability and landscape 
connectivity suggests that this area is unlikely to become occupied by 
condors in the foreseeable future. We included northwestern Nevada 
within the NEP to provide assurances to Nevada that in the unlikely 
event California condors travel to this area, they would be treated as 
nonessential experimental animals under the Act. The 10(j) rule would 
apply on National Wildlife Refuges, including Sheldon National Wildlife 
Refuge. However, experimental populations in National Wildlife Refuges 
and National Parks are treated as a threatened species for the purposes 
of section 7 of the ESA (but not under section 9 of the ESA) and 
consultation requirements of section 7(a)(2) of the ESA would apply.
    Comment: Commenters suggested the exception for fuels management be 
limited to emergency fire response or fuel treatment. They noted that 
there is no need to risk disturbance to active condor nests in a non-
emergency situation.
    Response: We agree and have updated the rule accordingly.
    Comment: Commenters asked if the existing program has the funding 
and capacity in terms of number of available birds to add a release 
site at the park.
    Response: The Condor Recovery Program is based on a broad long-term 
partnership between FWS and many other partners. Funding for this 
program does not rely entirely on FWS funds, as many partners have 
other sources of funding to help run the program. In fact, a majority 
of the funding for the program comes from outside partners. In 2017, 
FWS started to work with our partners to increase the capacity at the 
existing breeding facilities in order to provide more captive-reared 
birds for release to the wild. Based on these efforts, we expect to 
have additional birds available for release at Redwood National Park, 
without impacting our releases at the other release sites.
    Comment: Commenters stated that the condor recovery program could 
be mismanaged and suggested that condors may have a better chance of 
surviving if released at an existing site, rather than a new site.
    Response: Along with our partners, we have over a quarter century 
of experience in raising condors in

[[Page 15617]]

captivity and releasing them into the wild. Individuals managing the 
proposed release site have experience at existing release sites and 
will be assisted by the recovery program as needed. We intend to 
monitor and manage the population consistent with monitoring and 
management efforts at existing release sites. While we acknowledge that 
survival rates may increase with the length of time a release site has 
been active (Bakker et al. 2017), we also must weigh this information 
against the opportunity to reintroduce condors to this portion of its 
historic range, which would have long-term benefits to the overall 
conservation goals of this species. We have determined that 
establishing a new population--the first in the northern half of the 
species' historical range--is worth the possibility of slightly lower 
survival rates in the early years of the new reintroduction site.
    Comment: Commenters noted that landowners should be advised when 
monitored birds have fledged so that they can comply with the proposed 
standards for buffers around occupied nest sites.
    Response: As part of the condor reintroduction program, monitoring 
will occur through various methods, as described in the Monitoring and 
Evaluation section of this rule. Field crews will, to the best of their 
ability, notify adjacent landowners when occupied nest sites are 
identified. NPS, FWS, and the Yurok Tribe have coordinated with many 
surrounding landowners and land managers throughout the planning 
process and remain committed to working with our partners and neighbors 
during project implementation.
    Comment: Commenters asked during which year of the program we would 
review reintroduction efforts.
    Response: We will informally review the status of the 
reintroduction program on an annual basis. We intend to release key 
information from this informal annual review (e.g., population size, 
number of releases, number of deaths) to the public. Our formal status 
review of the reintroduction program, where we will assess whether we 
should continue or discontinue the reintroduction program in the 
Pacific Northwest, will likely occur within the first 5 years of the 
program. The review cycles will be aligned from that point forward. 
Based on our experiences releasing California condors in other areas, 
we caution that evaluating whether or not the program is successful--
and, therefore, whether it should continue--could take at least two 
decades (i.e., several 5-year review cycles).
    Comment: Commenters suggested that the proposed rule include 
language that allows buffers to expand if needed.
    Response: The 656-ft (200-m) buffer distance around occupied nests 
is intended to provide some protection to condor eggs and nestlings. We 
recognize that, in certain situations, noise or habitat disturbance 
outside of this buffer may cause harassment, or even harm, to an 
individual condor. We expect these instances to be extremely rare, 
given the small number of anticipated breeding condors in the 
foreseeable future and the vastness of the landscape they will occupy. 
For the reasons articulated in this final rule (see Management, above), 
we find that a 656-ft (200-m) buffer distance provides a reasonable 
balance between protection of condors and limiting the impact of this 
reintroduction effort on landowners.
    Comment: Commenters suggested further research regarding preventing 
condor mortality from power lines.
    Response: Over the last 28 years, there have been 18 incidents of 
condor electrocutions. FWS has worked with two major utility companies 
in California to minimize risk of future incidents. PG&E has recently 
completed a California Condor Conservation Strategy to reduce risk of 
electrocution and collisions of condors throughout its service area in 
California. In addition, PG&E has been working with partners in the 
condor recovery program to train chicks bred in captivity to avoid 
landing on power poles once they are released. These efforts continue 
to reduce the risk of electrocutions in the wild population.
    Comment: Commenters stated that the statistics of condor survival 
in the wild are skewed because some carcasses are returned from the 
field in such a way that it makes it difficult to determine the cause 
of mortality.
    Response: It is not possible to determine the cause of death for 
every condor that dies in the wild, as some carcasses are not located, 
and some have decayed to the point that the cause of death is 
indeterminable. The information the FWS provides to the public 
acknowledges that the data is limited to birds that we have been able 
to retrieve and determine the cause of death. However, given the large 
sample of condors for which cause of death has been determined (n = 
185), it is likely that our data on mortality sources are 
representative of the mortality sources in the population.
    Comment: Commenters questioned statements that describe the 
historical range of the California condor and note the causes of 
California condor decline. They note that the condor's preferred 
nesting habitats were not in areas that settlers would have normally 
used and, if direct persecution occurred, it was most likely related to 
condors feeding on livestock. They also noted that when game is shot, 
the carcass is usually retrieved, making lead poisoning from ammunition 
unlikely.
    Response: The probable causes for condor declines being related to 
direct persecution, indirect poisoning, and lead poisoning are well 
documented (D'Elia and Haig 2013). Condors can travel great distances 
from their nesting areas to feed and were documented on numerous 
occasions by early explorers and settlers. Condors are obligate 
scavengers and are not livestock predators; however, it is true that 
some settlers killed condors under the mistaken belief that condors 
might harm their livestock. In addition, there is ample historical 
evidence of numerous condors being shot for no purpose at all. While 
hunters usually retrieve game, misplaced shots may wound animals, and 
these individuals may carry lead fragments in their tissues until they 
die and the lead becomes available to scavengers. Further, many hunters 
field-dress game, leaving nonedible gut piles that can contain lead 
fragments. Finally, varmint hunters, typically targeting nongame 
animals such as ground squirrels and coyotes, shoot animals and leave 
carcasses in the field.
    Comment: Commenters made suggestions for adding tribal governments 
to the list of entities able to take condors during the course of 
recovery activities, modifying the fuels management exception to just 
emergency response activities, and clarifying that the Yurok Tribe 
Natural Resource Division is the responsible agency.
    Response: We thank the commenters for the suggestions and have 
updated the rule accordingly.
    Comment: Commenters questioned if non-lead outreach efforts and 
efforts for the voluntary switch to non-lead ammunition would occur in 
Nevada.
    Response: NDOW has implemented some voluntary measures to encourage 
hunters to switch to non-lead ammunition. In 2015, NDOW collaborated 
with the North American Non-lead Partnership to train hunter education 
instructors about non-lead ammunition. Non-lead ammunition outreach is 
now included in all hunter education training in Nevada. In addition, 
Nevada also has a regulation mandating the use of nontoxic shot on all 
Nevada Wildlife Management Areas (NAC 503.183).
    Comment: Commenters stated that past studies show that the lead 
ammunition ban would not be effective

[[Page 15618]]

in reducing the rates of lead in California condors because there are 
other sources of lead in the environment. They requested that the NEP 
include a special rule protecting all aspects of hunting, including use 
of all types of ammunition.
    Response: There is consensus, based on decades of scientific 
research, that lead ammunition is the primary source of lead toxicosis 
in California condors. While other sources of lead (e.g., lead paint) 
exist in the environment, instances of these sources poisoning 
California condors are extremely rare compared to poisoning from lead 
ammunition. This rule does not restrict lawful hunting and does not 
mandate the use any specific type of ammunition.
    Comment: Commenters stated that condors can be exposed to many 
contaminants. Contaminants of concern included mercury, anticoagulant 
rodenticides, DDT, and heavy metals from mining activities. Commenters 
stated there should be further study of the threats of emerging 
chemicals on condors and suggested that current statistics may 
underestimate the mortality resulting from these sources because the 
cause of death for many birds is undetermined. They also suggested that 
exposure to these chemicals may be considered ``take'' under the 
proposed rule.
    Response: While we cannot determine the cause of death for every 
individual condor, our mortality data indicate that, of the known 
causes of death, contaminants (not including lead), make up a very 
small proportion of deaths (USFWS 2020, p. 3). Nevertheless, we intend 
to monitor the health of released condors and assess contaminant loads 
in condors during health screenings and when we retrieve deceased 
condors in the field. We welcome additional research into exposure 
rates and impacts of contaminants on condor demography. In this rule, 
we are exempting incidental take associated with lawful activities that 
is non-negligent and unintentional. Habitat alteration and significant 
visual and noise disturbance within 656 ft (200 m) of an occupied nest 
are prohibited. Use of pesticides in compliance with EPA labels would 
not be prohibited within the NEP, whereas, use of pesticides out of 
compliance with EPA labels that results in take would be a violation of 
the ESA.
    Comment: Comments expressed specific concerns about the use of 
rodenticides in illegal marijuana growing sites. They requested that 
the 10(j) designation include a plan for rapid response if 
contamination related to mortalities occur.
    Response: As at existing release sites, field crews will closely 
monitor released condors and perform regular heath checks. If we detect 
toxicants are making condors sick or causing mortality, we will attempt 
to address the source(s) of contamination as rapidly as possible.
    Comment: Commenters expressed concern regarding the establishment 
of a new wind project near Cape Mendocino and the potential impact that 
project could have on the reintroduced population of condors.
    Response: To date, after more than 20 years of releasing California 
condors in areas with extensive wind energy development, we have not 
observed a single condor mortality from collisions with wind turbines. 
In addition, the amount of wind energy development (existing and 
proposed) is far less than the existing wind energy development in 
occupied condor habitat in southern and central California. 
Nevertheless, we recognize that poorly sited wind energy infrastructure 
can pose a threat to condors. Project proponents for wind projects in 
northern California have publicly expressed a willingness to work with 
the condor program and implement technology that can shut down turbines 
if a monitored condor flies close to a facility. We will seek to 
cooperate with energy producers for all existing and proposed energy 
projects in the region.

Summary of Changes From Proposed Rule

    In the final rule we have:
     Clarified that fuels treatments that are considered an 
emergency are exempt from the prohibited actions within 656 ft (200 m) 
of occupied nests.
     Added Tribal and local governments to the list of entities 
that are exempt from the prohibitions within 656 ft (200 m) of occupied 
nests when conducting emergency fuels treatments to reduce the risk of 
catastrophic wildfire.
     Added an exemption to the prohibitions within 656 ft (200 
m) of occupied nests for responses to wildfire or other emergencies.
     Clarified that activities such as ranching and use of 
existing roads and trails would not be considered a significant visual 
or noise disturbance occurring within 656 ft (200 m) of an occupied 
nest.
     Clarified that we use the phrase ``unavoidably and 
unintentionally'' to mean take that is not done on purpose and that 
occurs despite exerting reasonable care to avoid take.
     Provided, in response to comments, additional examples of 
otherwise lawful activities that are exempt from incidental take 
prohibitions.
     Provided, in response to comments, additional examples of 
specific activities that would be prohibited around occupied nests.
     Changed, at the request of the Yurok Tribe, the entity 
that may take condors to aid in their recovery from the Yurok Wildlife 
Department to the Yurok Tribe Natural Resource Division.

Findings

    Based on the best scientific and commercial data available (in 
accordance with 50 CFR 17.81), we find that releasing the California 
condors into Redwood National Park with the regulatory provisions in 
this final rulemaking will further the conservation of the species. The 
nonessential experimental population status is appropriate for the 
reintroduced population because we have determined that it is not 
essential to the continued existence of the species in the wild.

Required Determinations

Regulatory Planning and Review (Executive Orders 12866 and 13563)

    Executive Order 12866 provides that the Office of Information and 
Regulatory Affairs (OIRA) in the Office of Management and Budget will 
review all significant rules. OIRA has determined that this rule is not 
significant.
    Executive Order 13563 reaffirms the principles of E.O. 12866 while 
calling for improvements in the nation's regulatory system to promote 
predictability, to reduce uncertainty, and to use the best, most 
innovative, and least burdensome tools for achieving regulatory ends. 
The executive order directs agencies to consider regulatory approaches 
that reduce burdens and maintain flexibility and freedom of choice for 
the public where these approaches are relevant, feasible, and 
consistent with regulatory objectives. E.O. 13563 emphasizes further 
that regulations must be based on the best available science and that 
the rulemaking process must allow for public participation and an open 
exchange of ideas. We have developed this rule in a manner consistent 
with these requirements.

Regulatory Flexibility Act (5 U.S.C. 601 et seq.)

    Under the Regulatory Flexibility Act (as amended by the Small 
Business Regulatory Enforcement Fairness Act (SBREFA) of 1996; 5 U.S.C. 
60 et seq.), whenever a Federal agency is required

[[Page 15619]]

to publish a notice of rulemaking for any proposed or final rule, it 
must prepare, and make available for public comment, a regulatory 
flexibility analysis that describes the effect of the rule on small 
entities (i.e., small businesses, small organizations, and small 
government jurisdictions). However, no regulatory flexibility analysis 
is required if the head of an agency certifies that the rule will not 
have a significant economic impact on a substantial number of small 
entities. SBREFA amended the Regulatory Flexibility Act to require 
Federal agencies to provide a statement of the factual basis for 
certifying that a rule will not have a significant economic impact on a 
substantial number of small entities. We certify that this rule would 
not have a significant economic effect on a substantial number of small 
entities. The following discussion explains our rationale.
    The areas that would be affected under this rule include the 
release site at Redwood National Park and areas where individual 
California condors are likely to disperse. Because of the regulatory 
flexibility for Federal agency actions provided by the NEP designation 
and the exemption for incidental take in the rule (with a minor 
exception around occupied nests), we do not expect this rule to have 
significant effects on any activities within Federal, State, or private 
lands within the NEP. In regard to section 7(a)(2) of the Act, the 
population would be treated as proposed for listing, and Federal action 
agencies are not required to consult on their activities, except on 
National Wildlife Refuges and National Park System lands, where the NEP 
is treated as a threatened species for the purposes of section 7 of the 
Act.
    Section 7(a)(4) of the Act requires Federal agencies to confer 
(rather than consult) with the Service on actions that are likely to 
jeopardize the continued existence of a species proposed for listing. 
However, because the NEP is, by definition, not essential to the 
survival of the species, conferring will likely never be required for 
the California condor population within the NEP area. Further, the 
results of a conference are advisory in nature and do not restrict 
agencies from carrying out, funding, or authorizing activities. Section 
7(a)(1) of the Act requires Federal agencies to use their authorities 
to carry out programs to further the conservation of listed species, 
which would apply on any lands within the NEP areas. On National 
Wildlife Refuges and National Park System lands within the NEP, the 
California condor would be treated as a threatened species for the 
purposes of section 7 of the Act. As a result, and in accordance with 
our regulations, some modifications to proposed Federal actions within 
National Wildlife Refuges and National Park System lands may occur to 
benefit the California condor, but we do not expect projects to be 
substantially modified because these lands are already administered in 
a manner that is compatible with California condor conservation.
    This rule broadly authorizes incidental take of the California 
condor within the NEP area. The regulations implementing the Act define 
``incidental take'' as take that is incidental to, and not the purpose 
of, the carrying out of an otherwise lawful activity, such as 
agricultural activities and other rural development, camping, hiking, 
hunting, vehicle use of roads and highways, and other activities in the 
NEP areas that are in accordance with Federal, Tribal, State, and local 
laws and regulations. Intentional take for purposes other than 
authorized data collection or recovery purposes would not be 
authorized. Intentional take for research or recovery purposes would 
require a section 10(a)(1)(A) recovery permit under the Act.
    The principal activities on private property near the proposed 
release site are recreation, timber production, agriculture, and 
activities associated with private residences. The presence of the 
California condor will not significantly affect the use of lands for 
these purposes because--with a minor exception around occupied condor 
nests--there will be no new or additional economic or regulatory 
restrictions imposed upon States, non-Federal entities, or private 
landowners due to the presence of the California condor (NPS, 2018). 
Therefore, this rulemaking is not expected to have any significant 
adverse impacts to activities on private lands within the NEP area.

Unfunded Mandates Reform Act (2 U.S.C. 1501 et seq.)

    In accordance with the Unfunded Mandates Reform Act (2 U.S.C. 1501 
et seq.):
    (1) This rule would not ``significantly or uniquely'' affect small 
governments. We have determined and certify pursuant to the Unfunded 
Mandates Reform Act, 2 U.S.C. 1502 et seq., that, if adopted, this 
rulemaking would not impose a cost of $100 million or more in any given 
year on local or State governments or private entities. A Small 
Government Agency Plan is not required. Small governments would not be 
affected because the NEP designation would not place additional 
requirements on any city, county, or other local municipalities.
    (2) This rule would not produce a Federal mandate of $100 million 
or greater in any year (i.e., it is not a ``significant regulatory 
action'' under the Unfunded Mandates Reform Act). This NEP designation 
for the California condor would not impose any additional management or 
protection requirements on the States or other entities.

Takings (E.O. 12630)

    In accordance with Executive Order 12630, the rule does not have 
significant takings implications. When reintroduced populations of 
federally listed species are designated as nonessential experimental 
populations, the Act's regulatory requirements regarding the 
reintroduced population are significantly reduced. This rule would 
allow for the taking of reintroduced California condors when such take 
is incidental to an otherwise legal activity, with a minor exception 
that incidental take resulting from habitat alteration and significant 
visual or noise disturbance within 656 ft (200 m) of occupied condor 
nests is prohibited.
    A takings implication assessment is not required because this rule: 
(1) Would not effectively compel a property owner to suffer a physical 
invasion of property, and (2) would not deny all economically 
beneficial or productive use of the land or aquatic resources. This 
rule would substantially advance a legitimate government interest 
(conservation and recovery of a listed species) and would not present a 
barrier to all reasonable and expected beneficial uses of private 
property.

Federalism (E.O. 13132)

    In accordance with Executive Order 13132, we have considered 
whether this rule has significant Federalism effects and have 
determined that a Federalism assessment is not required. This rule 
would not have substantial direct effects on the States, on the 
relationship between the Federal Government and the States, or on the 
distribution of power and responsibilities among the various levels of 
government. In keeping with Department of the Interior policy, we 
requested information from and coordinated development of this rule 
with the affected resource agencies in California, Nevada, and Oregon. 
Achieving the recovery goals for this species will contribute to its 
eventual delisting and return to State management. No intrusion on 
State policy or administration is expected, roles or responsibilities 
of Federal or

[[Page 15620]]

State governments would not change, and fiscal capacity would not be 
substantially directly affected. The rule operates to maintain the 
existing relationship between the State and the Federal Government and 
is being undertaken in coordination with the States of California, 
Nevada, and Oregon. We have cooperated with CDFW, the NDOW, and ODFW in 
the preparation of this final rule. Therefore, this rule does not have 
significant Federalism effects or implications to warrant the 
preparation of a Federalism assessment pursuant to the provisions of 
Executive Order 13132.

Civil Justice Reform (E.O. 12988)

    In accordance with Executive Order 12988 (February 7, 1996, 61 FR 
4729), the Office of the Solicitor has determined that this rule would 
not unduly burden the judicial system and would meet the requirements 
of sections (3)(a) and (3)(b)(2) of the Order.

Paperwork Reduction Act

    This rule does not contain any new collection of information that 
requires approval by the Office of Management and Budget (OMB) under 
the Paperwork Reduction Act of 1995 (44 U.S.C. 3501 et seq.). OMB has 
previously approved the information collection requirements associated 
with permitting and reporting requirements associated with native 
endangered and threatened species, and experimental populations, and 
assigned the following OMB Control Numbers:
     1018-0094, ``Federal Fish and Wildlife Permit Applications 
and Reports--Native Endangered and Threatened Species; 50 CFR 10, 13, 
and 17'' (expires 03/31/2021), and
     1018-0095, ``Endangered and Threatened Wildlife, 
Experimental Populations, 50 CFR 17.84'' (expires 9/30/2023).
    An agency may not conduct or sponsor, and a person is not required 
to respond to, a collection of information unless it displays a 
currently valid OMB control number.

National Environmental Policy Act

    In compliance with all provisions of the National Environmental 
Policy Act of 1969 (NEPA), we have analyzed the impact of this final 
rule. In cooperation with the NPS and the Yurok Tribe, we have prepared 
an environmental assessment on this action and have made it available 
for public inspection (see ADDRESSES).

Government-to-Government Relationship With Tribes

    In accordance with the President's memorandum of April 29, 1994, 
``Government-to-Government Relations with Native American Tribal 
Governments'' (59 FR 229511), Executive Order 13175, and the Department 
of the Interior Manual Chapter 512 DM 2, we have coordinated closely 
with the Tribal governments near the release site throughout the 
development of this rule. In collaboration with the NPS, we extended an 
invitation for government-to-government consultation to all federally 
recognized Tribes in the NEP area, have formally met with tribes that 
have requested government-to-government consultation, and have fully 
considered information and comments received through the consultation 
process. We have also considered all comments received from Tribes and 
tribal members during the public comment period.

Energy Supply, Distribution, or Use (E.O. 13211)

    Executive Order 13211 requires agencies to prepare Statements of 
Energy Effects when undertaking certain actions. This rule is not 
expected to significantly affect energy supplies, distribution, and 
use. Therefore, this action is not a significant energy action and no 
Statement of Energy Effects is required.

References Cited

    A complete list of all references cited in this final rule is 
available online at https://www.regulations.gov in Docket No. FWS-R1-ES-
2018-0033 or upon request from the Pacific Region Office (see FOR 
FURTHER INFORMATION CONTACT).

Author

    The primary author of this final rule is Jesse D'Elia of the 
Pacific Regional Office (see FOR FURTHER INFORMATION CONTACT).

List of Subjects in 50 CFR 17

    Endangered and threatened species, Exports, Imports, Reporting and 
recordkeeping requirements, Transportation.

Regulation Promulgation

    Accordingly, we are amending part 17, subchapter B of chapter I, 
title 50 of the Code of Federal Regulations, as set forth below:

PART 17--ENDANGERED AND THREATENED WILDLIFE AND PLANTS

0
1. The authority citation for part 17 continues to read as follows:

    Authority: 16 U.S.C. 1361-1407; 1531-1544; and 4201-4245, unless 
otherwise noted.


0
2. Amend Sec.  17.11(h) by revising the entry for ``Condor, 
California'' under BIRDS in the List of Endangered and Threatened 
Wildlife to read as follows:


Sec.  17.11  Endangered and threatened wildlife.

* * * * *
    (h) * * *

--------------------------------------------------------------------------------------------------------------------------------------------------------
          Common name            Scientific name                   Where listed                   Status       Listing citations and applicable rules
--------------------------------------------------------------------------------------------------------------------------------------------------------
 
                                                                      * * * * * * *
             Birds
 
 
                                                                      * * * * * * *
Condor, California............  Gymnogyps         U.S.A. only, except where listed as an               E   32 FR 4001, 3/11/1967; 61 FR 54045, 10/16/
                                 californianus.    experimental population.                                 1996; 50 CFR 17.95(b)\CH\.
Condor, California............  Gymnogyps         U.S.A. (specific portions of Arizona, Nevada,       XN   61 FR 54045, 10/16/1996; 50 CFR 17.84(j)
                                 californianus.    and Utah)--see Sec.   17.84(j).                          \10j\.
Condor, California............  Gymnogyps         U.S.A. (Oregon, and specific portions of            XN   86 FR [Insert Federal Register page where the
                                 californianus.    northern California and northwest Nevada)--              document begins], 3/24/2021; 50 CFR 17.84(i)
                                                   see Sec.   17.84(i).                                     \10j\.
 
                                                                      * * * * * * *
--------------------------------------------------------------------------------------------------------------------------------------------------------


[[Page 15621]]


0
3. Amend Sec.  17.84 by adding paragraph (i) to read as follows:


Sec.  17.84  Special rules--vertebrates.

* * * * *
    (i) California condor (Gymnogyps californianus).
    (1) Where is the California condor designated as a nonessential 
experimental population (NEP)? The NEP area for the California condor 
is within the species' historical range in northern California, 
northwestern Nevada, and Oregon.
    (i) The western boundary of the NEP is the Submerged Lands Act 
boundary line along the Pacific coast. The southern boundary of the NEP 
is formed by: An east-west line from California's Submerged Lands Act 
boundary to Hare Creek; Hare Creek from the Pacific Ocean to its 
junction with California State Route 1; north to the junction of State 
Route 1 and State Route 20; east along California State Route 20 to 
where it meets Interstate 80; and Interstate 80 from its intersection 
with California State Route 20 to U.S. Route 95 in Nevada. The eastern 
boundary of the NEP is U.S. Route 95 in Nevada to the State boundary of 
Oregon and then east and north along Oregon's southern and eastern 
boundaries, respectively. The northern boundary of the NEP is the State 
boundary between Oregon and Washington. All highway boundaries are 
inclusive of the entire highway right of way.
    (ii) Map follows:
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    (iii) We are designating the experimental population area to 
accommodate the potential future movements of a wild population of 
California condors. The released population is expected to remain in 
the experimental area for the foreseeable future (approximately 20 
years) due to the geographic extent of the designation.
    (iv) We do not intend to change the status of this nonessential 
population unless:
    (A) The California condor is recovered and subsequently removed 
from the list

[[Page 15623]]

in Sec.  17.11(h) in accordance with the Act; or
    (B) The reintroduction is not successful and the regulations in 
this paragraph (i) are revoked.
    (v) Legal actions or other circumstances may compel a change in 
this nonessential experimental population's legal status to essential, 
threatened, or endangered, or compel the Service to designate critical 
habitat for the California condors within the experimental population 
area defined in this rule. If this happens, all California condors will 
be removed from the area and this experimental population rule will be 
withdrawn, unless the participating parties in the reintroduction 
effort agree that the condors should remain in the wild. Changes in the 
legal status and/or removal of this population of California condors 
will be made in compliance with any applicable Federal rulemaking and 
other procedures.
    (vi) We will not designate critical habitat for this NEP, as 
provided by 16 U.S.C. 1539(j)(2)(C)(ii).
    (2) What take of the California condor is allowed in the NEP area? 
(i) Throughout the California condor NEP, you will not be in violation 
of the Act if you unavoidably and unintentionally take a California 
condor (except as noted in paragraph (i)(3)(ii) of this section), 
provided such take is non-negligent, incidental to a lawful activity 
(i.e., not done on purpose), and you report the take as soon as 
possible as provided under paragraph (i)(2)(iii) of this section. The 
phrase ``unavoidably and unintentionally'' means take that occurs 
despite the exertion of reasonable care to avoid take. Examples of 
activities that will not violate the take prohibitions of this section 
include, but are not limited to: Legal hunting of species other than 
condors; recreational shooting; ranching; farming; existing authorized 
uses of private and public lands; driving; recreational activities; and 
administrative and emergency functions carried out by local, State, or 
Federal government agencies.
    (ii) Any person with a valid permit issued by the Service under 
Sec.  17.32 may take California condors in the wild in the experimental 
population area, pursuant to the terms of the permit. Additionally, any 
employee or agent of the Service, National Park Service, Yurok Tribe 
Natural Resource Division, California Department of Parks and 
Recreation, California Department of Fish and Wildlife, Nevada 
Department of Wildlife, or Oregon Department of Fish and Wildlife who 
is designated and trained for such purposes, when acting in the course 
of official duties, may take a California condor within the NEP area if 
such action is necessary:
    (A) For scientific purposes;
    (B) To relocate or haze California condors within the experimental 
population area to improve California condor survival or recovery;
    (C) To relocate California condors that have moved outside the 
experimental population area;
    (D) To transport California condors to and from veterinary 
facilities or captive-breeding facilities;
    (E) To address conflicts with ongoing or proposed activities in an 
attempt to improve California condor survival;
    (F) To aid a sick, injured, or orphaned California condor;
    (G) To salvage a dead specimen that may be useful for scientific 
study;
    (H) To dispose of a dead specimen; or
    (I) To aid in law enforcement investigations involving the 
California condor.
    (iii) Any take pursuant to paragraphs (i)(2)(i), (i)(2)(ii)(F), 
(i)(2)(ii)(G), or (i)(2)(ii)(H) of this section must be reported as 
soon as possible to the California Condor Field Coordinator, California 
Condor Recovery Office, 2493 Portola Road, Suite A, Ventura, California 
93003, (805/644-5185), who will determine the disposition of any live 
or dead specimens.
    (3) What take of the California condor is not allowed in the NEP 
area? For the purposes of this rule, an occupied California condor nest 
is defined as a nest that is attended by a breeding pair of condors, 
occupied by a condor egg, or occupied or attended by a condor less than 
1 year of age.
    (i) Except as expressly allowed in paragraph (i)(2) of this 
section, all of the provisions of Sec.  17.31(a) and (b) apply to the 
California condor in areas identified in paragraph (i)(1) of this 
section, and any manner of take not described under paragraph (i)(2) of 
this section is prohibited in the NEP.
    (ii) Habitat alteration (e.g., removing trees, erecting structures, 
altering the nest structure or perches near the nest) within 656 ft 
(200 m) of an occupied nest is prohibited, except for emergency fuels 
treatment activities by Federal, State, Tribal, or local government 
agencies to reduce the risk of catastrophic wildfire or during 
responses to wildfire or other emergencies.
    (iii) Significant visual or noise disturbance (e.g., tree felling, 
chainsaws, helicopter overflights, concrete cutters, fireworks, 
explosives) within 656 ft (200 m) of an occupied nest is prohibited, 
except for emergency fuels treatment activities by Federal, State, 
Tribal, or local government agencies to reduce the risk of catastrophic 
wildfire or during responses to wildfire or other emergencies. 
Activities such as ranching and use of existing roads and trails would 
not be considered a significant visual or noise disturbance.
    (iv) You must not possess, sell, deliver, carry, transport, ship, 
import, or export, by any means whatsoever, any California condor or 
part thereof from the experimental population taken in violation of 
this paragraph (i) or in violation of applicable tribal or State laws 
or regulations or the Act.
    (v) It is unlawful for you to attempt to commit, solicit another to 
commit, or cause to be committed, any take of the California condor, 
except as expressly allowed in paragraph (i)(2) of this section.
    (4) How will the effectiveness of this reintroduction be monitored? 
The status of the reintroduction project will receive an informal 
review on an annual basis, and we will evaluate the reintroduction 
program to determine whether to continue or terminate reintroductions 
every 5 years as part of our 5-year status review for the species.
    (i) This evaluation will include, but will not be limited to: A 
review of management issues; California condor movements and post-
release behavior; assessment of food resources and dependence of 
California condors on supplemental food; fecundity of the population; 
causes and rates of mortality; project costs; public acceptance; and 
progress toward establishing a self-sustaining population.
    (ii) If a formal evaluation indicates the project is experiencing a 
40 percent or greater mortality rate over multiple years or released 
California condors are not finding food on their own, serious 
consideration will be given to terminating the project.
* * * * *

Martha Williams,
Principal Deputy Director, Exercising the Delegated Authority of the 
Director, U.S. Fish and Wildlife Service.
[FR Doc. 2021-05646 Filed 3-23-21; 8:45 am]
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