[Federal Register Volume 70, Number 2 (Tuesday, January 4, 2005)]
[Notices]
[Pages 380-382]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 05-48]
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DEPARTMENT OF THE INTERIOR
National Park Service
Draft Environmental Impact Statement, Non-Native Deer Management
Plan Point Reyes National Seashore; Marin County, CA; Notice of
Availability
SUMMARY: Pursuant to section 102(2)(C) of the National Environmental
Policy Act of 1969 (Pub. L. 91-190, as amended), and the Council on
Environmental Quality Regulations (40 CFR part 1500-1508), the National
Park Service (NPS), Department of the Interior, has prepared a Draft
Environmental Impact Statement identifying and evaluating five
alternatives for a Non-Native Deer Management Plan for Point Reyes
National Seashore administered lands. Potential impacts, and
appropriate mitigations, are assessed for each alternative. When
approved, the plan will guide, for the next 15 years, non-native deer
management actions on lands administered by Point Reyes National
Seashore. The Non-Native Deer Management Plan and Draft Environmental
Impact Statement documents the analyses of four action alternatives,
and a ``no action'' alternative. Five other preliminary alternatives
were considered but rejected because they did not achieve the
objectives of the non-native deer management plan or were infeasible.
Planning Background: Axis deer (Axis axis) are native to India and
fallow deer (Dama dama) are native to Asia Minor and the Mediterranean
region. Axis and fallow deer were introduced to the Point Reyes area in
the 1940s and 1950s, before establishment of the Seashore. Between 1976
and 1994, NPS rangers removed more than 2,000 non-native deer. In 1994,
cullling was discontinued. Since then, non-native deer have not been
actively managed and numbers and range have increased to, or surpassed,
pre-control levels. Seashore staff estimates current numbers of axis
and fallow deer to be approximately 250 and 860, respectively.
The purpose of the Non-Native Deer Management Plan (NNDMP) is to
define management prescriptions for non-native deer. Both the park's
General Management Plan (GMP) and Resource Management Plan (RMP),
identify goals for management of these exotic species. The park's 1999
RMP indicates ``Regardless of potential competition and disease issues,
the presence of these non-native deer compromises the ecological
integrity of the Seashore and the attempts to reestablish the native
cervid fauna comprising tule elk and black-tailed deer'' and notes that
three scientific panels comprised of federal, state, and university
researchers and managers recommended the removal of non-native deer to
promote restoration of native deer and elk. The objectives of the plan
are:
To correct past and ongoing disturbances to Seashore
ecosystems from introduced non-native ungulates and thereby to
contribute substantially to the restoration of naturally functioning
native ecosystems.
To minimize long-term impacts, in terms of reduced staff
time and resources, to resource protection programs at the Seashore,
incurred by continued monitoring and management of non-native
ungulates.
To prevent spread of populations of both species of non-
native deer beyond Seashore and GGNRA boundaries.
To reduce impacts of non-native ungulates through direct
consumption of forage, transmission of disease to livestock and damage
to fencing to agricultural permittees within pastoral areas.
The primary problems associated with the presence of these
nonnative deer are their interference with native species and native
ecosystems; conflicts with the laws, regulations and NPS policies
regarding restoration of natural conditions and native species; and the
impacts on ranchers in the park, on park operations, budget. In
addition there is the potential for each of these impacts to increase
as deer populations expand beyond park boundaries. The objectives of
the planning effort are to solve these problems.
The planning area for the NNDMP includes NPS lands located
approximately 40 miles northwest of San Francisco in Marin County,
California. These lands include the 70,046-acre Point Reyes National
Seashore, comprised primarily of beaches, coastal headlands, extensive
freshwater and estuarine wetlands, marine terraces, and forests; as
well as 18,000 acres of the Northern District of Golden Gate National
Recreation Area (GGNRA), primarily supporting annual grasslands,
coastal scrub, and Douglas-fir and coast redwood forests. Thirty-five
percent, or 32,000 acres, of Seashore lands are managed as wilderness.
Proposed Non-Native Deer Management Plan: Alternative E is the
agency-preferred alternative in the Draft Environmental Impact
Statement (EIS). Under this alternative (Removal of All Non-Native Deer
by a Combination of Agency Removal and Fertility control -Sterilants or
Yearly Contraception), all axis and fallow deer inhabiting the Seashore
and the GGNRA lands administered by the Seashore would be eradicated by
approximately 2020 through lethal removal and fertility control.
Culling would be conducted by NPS staff specifically trained in
wildlife sharpshooting. The contraceptive program would incorporate the
latest contraceptive technologies to safely prevent reproduction, for
as long as possible, and with minimal treatments per animal. Because no
long-acting ``sterilant'' has been approved for use in wildlife by the
Food and Drug Administration, studies on safe and efficacious use of a
candidate drug would have to be conducted at PRNS before it could be
used for management and population control. Population models of
Seashore fallow deer indicate that under this alternative, if the
contraceptives used were effective in
[[Page 381]]
blocking fertility for at least 4 years, eradication could be
accomplished with fewer fallow deer lethally removed. Because the
effectiveness of long-term contraceptives on axis deer is unknown,
similar models have not been developed for this species. Studies on
sterilant efficacy and deer population response to treatment will be
used adaptively to guide the non-native deer management program. The
goal will be to maximize benefits to natural resources and minimize
safety risks to NPS staff, while striving to reduce numbers of animals
killed.
Alternatives To Proposed Plan: The NNMP / Draft EIS analyzes four
alternatives besides the preferred alternative. Alternatives E and D
(Removal of All Non-Native Deer by Agency Removal) are both identified
in the Draft EIS as the ``environmentally preferred'' alternatives and
are considered equally likely to best protect the biological and
physical environment of the project area. Both would result in
eradication of non-native deer within 15 years and consequently would
result in complete removal of all adverse impacts caused by non-native
deer to wildlife, vegetation, soils, special status species and water
resources.
Alternative A--No Action. This alternative represents the current
non-native deer management program. It would perpetuate the non-native
deer management practices undertaken since 1994, when ranger culling
was discontinued. No actions to control the size of non-native deer
populations would be taken. In order to ensure protection of native
species and ecosystems, continued monitoring for at least 15 years
would be an integral part of this alternative as well as all other
alternatives considered.
Alternative B--Control of Non-Native Deer at Pre-Determined Levels
by Agency Removal. Alternative B would focus on the use of lethal
control to reduce the size of non-native deer populations. Culling
would be conducted by NPS staff specifically trained in wildlife
sharpshooting. Non-native deer populations would be maintained at a
level of 350 for each species (700 total axis and fallow deer). Because
fallow deer concentrations are currently higher than this, and axis
deer populations are lower than this target, the focus of initial
reductions would be on fallow deer. This target population level was
chosen because of its history, and for management reasons. However, the
number would be re-evaluated by resource managers regularly and could
be changed based on results of ongoing monitoring programs. Efforts
would be made to reach target (reduced) levels in 15 years and to
ensure continued presence of both species in the Seashore. Because
fallow deer currently exceed 350 animals, and axis deer have
historically done so, any chosen population control method would need
to be used in perpetuity to maintain each species at this population
size. Because the management time frame is very long (theoretically
lasting forever), the total numbers of deer lethally removed could be
very high.
Alternative C--Control of Non-Native Deer at Pre-Determined Levels
by Agency Removal and Fertility Control. As in Alternative B, non-
native deer populations would be maintained at a level of 350 for each
species (700 total axis and fallow deer), but through a combination of
lethal removals and fertility control. This target population level was
chosen because of its history, and for management reasons. However, the
number would be re-evaluated by resource managers regularly and could
be changed based on results of ongoing monitoring programs. Culling
would be conducted by NPS staff specifically trained in wildlife
sharpshooting. The contraceptive program would incorporate the latest
contraceptive technologies to safely prevent reproduction, for as long
as possible, and with minimal treatments per animal. Because no long-
acting ``sterilant'' has been approved for use in wildlife by the Food
and Drug Administration, studies on safe and efficacious use of a
candidate drug would have to be conducted at PRNS before it could be
used for management and population control. Population models of
Seashore fallow deer indicate that under Alternative C, if the
contraceptive used were effective in blocking fertility in does for at
least 4 years, population control could be accomplished with fewer
fallow deer lethally removed. Because the effectiveness of long-term
contraceptives on axis deer is unknown, similar models have not been
developed for this species. Studies on sterilant efficacy and deer
population response to treatment would be used adaptively to guide the
non-native deer management program in maximizing benefits to natural
resources and in minimizing safety risks to NPS staff, while striving
to reduce numbers of animals killed.
Because fallow deer numbers are currently higher than 350, and axis
deer populations are lower than this target, the focus of initial
reductions would be on fallow deer. Efforts would be made to reach
target (reduced) levels in 15 years. Because the goal of this
alternative will be to control axis and fallow deer at a specified
level and not to eradicate them from PRNS, annual culling and fertility
control would continue indefinitely. Because the management time frame
is very long (theoretically lasting forever), the total numbers of deer
removed and treated with contraceptives could also be very high under
this alternative.
Alternative D--Removal of All Non-Native Deer by Agency Personnel.
In Alternative D, all axis and fallow deer inhabiting the Seashore and
the GGNRA lands administered by the Seashore would be eradicated
through lethal removal (shooting) by 2020. Culling would be conducted
by NPS staff specifically trained in wildlife sharpshooting. The
management actions included in this alternative would continue until
both species were extirpated, with a goal of full removal in no more
than 15 years. This time frame minimizes the total number of deer
removed (a longer period of removal would mean more fawns are born and
more total deer are killed) and is reasonable from a cost and logistics
standpoint. Because of their current large numbers (250 axis deer and
860 fallow deer), it is expected that total removal of both species
would require a minimum of 13 years. Monitoring during program
implementation would be done to assess program success and to guide
adjustments in the location, intensity and logistics of removal.
Actions Common to All Alternatives--In order to ensure protection
of native species and ecosystems and to assess success of any
management program, continued monitoring for at least 15 years would be
an integral part of any Alternative Chosen. All actions which involve
direct management of individual animals, ranging from aerial
surveillance to live capture and lethal removal, would be conducted in
a manner which minimizes stress, pain and suffering to every extent
possible. All actions occurring in designated Wilderness, from
monitoring to active deer management, would be consistent with the
``minimum requirement'' concept.
Scoping Summary: On April 10, 2002, a ``Notice of Scoping for Non-
Native Deer Management Plan at Point Reyes National Seashore'' was
published in the Federal Register (v67, n69, pp 17446-17447). Through
public scoping and internal analysis by the Seashore's
interdisciplinary NNDMP/EIS team, it was determined that an
Environmental Impact Statement, rather than an Environmental
Assessment, should be prepared. As mandated by NEPA, an EIS was chosen
because data was deemed insufficient to decide whether the project had
potential to be controversial
[[Page 382]]
because of disagreement over possible environmental effects. In
addition to consulting NPS resource specialists, within and outside the
Seashore, park managers consulted federal, state and local agencies
about management issues of concern.
The beginning of public scoping was announced on May 4, 2002, at a
public meeting of the Point Reyes National Seashore Citizens Advisory
Commission with a presentation on the NNDMP planning process. In this
meeting, input on non-native deer management issues of concern and
range of alternatives was solicited from the public. The public meeting
featured a short presentation by the Seashore wildlife biologist on the
environmental planning process, background on non-native deer, and
issues of importance to park management. Background informational
handouts were provided. Members of the Citizen's Advisory Committee for
Point Reyes National Seashore and Golden Gates National Recreation Area
were given the opportunity to ask questions of park staff. Five
individuals spoke at the public meeting. A sign-up sheet at the public
meeting provided an opportunity for members of the public to be
included on a mailing list for upcoming information on the management
plan in development.
Public comments were accepted in letter or email form from May 4,
2002 until July 5, 2002. All those who sent written comments during the
scoping period and included a return mailing address were also put on
the mailing list. An acknowledgment of the Seashore's receipt of
written comments, in postcard form, was also sent to those who wrote
letters. A similar e-mail message was sent back to those who emailed
comments. A total of 32 written comments were received by the close of
the public comment period. The major themes communicated by the public
during the May 4, 2002 meeting and the subsequent scoping period
encompassed a range, from a desire to retain non-native deer in the
park or to use non-lethal deer control techniques, to concern about
impacts to natural resources from non-native deer and a desire to
eliminate all non-native deer from the Seashore.
Commenting on the Draft EIS: The purpose of the management plan is
to define management prescriptions for non-native deer. A public
workshop on the proposed NNDMP will be held during late winter 2005 at
the Point Reyes National Seashore Red Barn meeting (confirmed date and
other workshop details will be advertised by direct mailing to 210
individuals and organizations) and a notice placed in the local
newspapers. All interested individuals, organizations, and agencies
will be encouraged to provide comments, suggestions, and relevant
information (earlier scoping comments need not be resubmitted); written
comments must be postmarked not later than 60 days following
publication in the Federal Register by EPA of their notice of filing of
the availability of the Draft EIS (as soon as this date can be
confirmed it will be announced on the park's website, and included in
the workshop mailing). Questions at this time regarding the NNDMP
planning process or work shop should be addressed to the Superintendent
either by mail (see address below) or by telephone at (415) 663-8522.
Please note that names and addresses of people who comment become part
of the public record. If individuals commenting request that their name
and/or address be withheld from public disclosure, it will be honored
to the extent allowable by law. Such requests must be stated
prominently in the beginning of the comments. There also may be
circumstances wherein the NPS withholds from the record a respondent's
identity, as allowable by law. As always: the NPS will make available
to public inspection all submissions from organizations or businesses
and from persons identifying themselves as representatives or officials
of organizations and businesses; and, anonymous comments may not be
considered.
ADDRESSES: Copies of the Draft EIS may be obtained from the
Superintendent, Point Reyes National Seashore, Point Reyes, CA 94956,
Attn: NNDMP, or by e-mail request to: [email protected] (in the
subject line, type: NNDMP). The document will be sent directly to those
who have requested it, and also posted on the Internet at the park's
Web page (http://www.nps.gov/pore/pphtml/documents.html.); and both the
printed document and digital version on compact disk will be available
at the park headquarters and local libraries.
Decision: Following careful analysis of public and agency comment
on the Draft EIS, it is anticipated at this time that the final EIS
would be available in fall of 2005. As a delegated EIS, the official
responsible for the final decision is the Regional Director, Pacific
West Region. A Record of Decision would not be signed sooner than 30
days following release of the Final EIS; notice of the decision will be
posted in the Federal Register and announced in local and regional
newspapers. Following approval of the Non-Native Deer Management Plan,
the official responsible for implementation will be the Superintendent,
Point Reyes National Seashore.
Dated: December 17, 2004.
Jonathan B. Jarvis,
Regional Director, Pacific West Region.
[FR Doc. 05-48 Filed 1-3-05; 8:45 am]
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