[Federal Register Volume 79, Number 150 (Tuesday, August 5, 2014)]
[Notices]
[Pages 45452-45456]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2014-18450]
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DEPARTMENT OF THE INTERIOR
Fish and Wildlife Service
[FWS-R6-R-2014-N092; FXRS12610600000-145-FF06R06000]
National Bison Range Complex, Moiese, MT; Environmental
Assessment for the Proposed Annual Funding Agreement With the
Confederated Salish and Kootenai Tribes
AGENCY: Fish and Wildlife Service, Interior.
ACTION: Notice of availability; request for comments.
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SUMMARY: We, the U.S. Fish and Wildlife Service (Service), announce
that our draft environmental assessment (EA) for the proposed Annual
Funding Agreement (AFA) with the Confederated Salish and Kootenai
Tribes (CSKT) is available. The proposed AFA would allow CSKT to
design, manage, and implement the biology, visitor services, fire, and
maintenance program on the National Bison Range Complex. This draft EA
describes and analyzes four alternatives, including the draft AFA and
the No Action alternative.
DATES: To ensure consideration, we must receive your written comments
on the draft EA by September 4, 2014. Submit comments by one of the
methods under ADDRESSES.
ADDRESSES: Send your comments or requests for more information by one
of the following methods.
Email: [email protected]. Include ``NBR AFA'' in the subject line.
U.S. Mail: Laura King, Planning Division, National Bison Range
Complex, 58355 Bison Range Road, Moiese, MT 59824.
Document Request: A copy of the EA may be obtained by writing to
U.S. Fish and Wildlife Service, Division of Refuge Planning, 134 Union
Boulevard, Suite 300, Lakewood, CO 80228; or by download from http://fws.gov/bisonrange.
FOR FURTHER INFORMATION CONTACT: Laura King, by phone at 406-644-2211,
ext. 210, or by email at [email protected]; or Toni Griffin, by phone
at 303-236-4378, or by email at [email protected].
SUPPLEMENTARY INFORMATION:
Introduction
The National Bison Range Complex (refuge complex) is managed by the
U.S. Fish and Wildlife Service as part of the National Wildlife Refuge
System (Refuge System). The refuge complex is located in Flathead,
Lake, and Sanders
[[Page 45453]]
Counties in northwestern Montana, with the refuge headquarters in
Moiese, Montana. The refuge complex consists of the following units of
the Refuge System: The National Bison Range, Pablo National Wildlife
Refuge (Pablo Refuge), Ninepipe National Wildlife Refuge (Ninepipe
Refuge), Lost Trail National Wildlife Refuge, and the Northwest Montana
Wetland Management District (WMD). The units included in the proposed
AFA are the National Bison Range, the Ninepipe and Pablo Refuges, and
nine waterfowl production areas in the Lake County portion of the WMD.
All of these units are in Lake and Sanders Counties, and within the
boundaries of the Confederated Salish and Kootenai Tribes' (CSKT's)
Flathead Indian Reservation.
The National Bison Range was established in 1908, to conserve the
herd of bison presented by the American Bison Society. It also has a
purpose as a refuge and breeding ground for birds. In addition, Pablo
and Ninepipe Refuges were established as refuge and breeding areas for
native birds. The United States owns all the lands within the refuge
complex except for Ninepipe and Pablo Refuges, which are on tribal
trust lands owned by CSKT. In 1948, the Service acquired a refuge
easement from CSKT for the right to manage these lands and waters as
part of the Refuge System. Including the nine waterfowl production
areas in the WMD, the area being considered under the proposed action
encompasses 26,604 acres made up of a variety of wildlife habitats from
wetlands, lakes, and streams, to intermountain bunchgrass prairies
interspersed with forested lands. The refuge complex supports a variety
of wildlife species, including the plains bison, bighorn sheep, black
bears, and migratory Federal trust species, including grassland birds
and shorebirds that are becoming imperiled as habitats decline across
their ranges. Over 205 species of birds use these lands for breeding,
migration, and nesting.
The beauty of the Mission Valley and the refuge complex brings over
200,000 annual visitors from all over the world to view and photograph
wildlife. Visitors come to explore the visitor center, drive the 19-
mile-long Red Sleep Auto Tour Route, fish and hunt, and participate in
refuge complex education and interpretation programs.
The CSKT is a Federally-recognized Indian Tribe represented by its
Tribal Council, participating in the Tribal Self-Governance Program
established by the Secretary of the Interior (Secretary) under the
Indian Self-Determination and Education Assistance Act, 25 U.S.C. 450-
450n, as amended by section 204 of the Tribal Self-Governance Act of
1994, codified at 25 U.S.C. 458aa-458hh. The CSKT is comprised of the
Bitterroot Salish, the Pend d'Oreille, and the Kootenai Tribes, whose
home is the 1.3-million-acre Flathead Indian Reservation in
northwestern Montana. The Tribal Self-Governance Act gives qualifying
tribes the authority to request and enter into negotiations for AFAs
with non-BIA Department of the Interior agencies, authorizing the tribe
to conduct programs, services, functions, or activities that have a
special geographical, historical, or cultural significance to the
tribe. We have the authority to decline a proposal made by any tribe,
and we may not transfer any positions or duties that are considered
inherently Federal.
Background
In November 2011, CSKT requested negotiations for a third AFA with
the Service that would allow them to manage and implement the biology,
fire, maintenance, and visitor services programs on the National Bison
Range Complex. Negotiations for a draft AFA were concluded in March
2012. In May 2012, the Service initiated an EA process to evaluate the
environmental consequences of this draft AFA. The public was notified
about the EA process through statewide media outlets and the refuge
complex Web site. As part of this public scoping process, the public
reviewed the draft AFA and provided comments. We prepared this EA to
document our analysis of alternatives. Implementation of any of the
alternatives would involve changes to the staff and administration of
the National Bison Range Complex, so we developed a range of
alternatives, with different levels of program management by the CSKT
and various staff configurations. In this EA, we describe in detail the
following alternatives and their expected consequences:
Alternative A--No Action
Alternative B--Draft AFA (Proposed Action)
Alternative C--AFA for Fire and Visitor Programs
Alternative D--AFA same as Alternative C, plus Addition of
More CSKT Staff in All Programs
Alternative E--AFA same as Alternative D, plus District
Programs With Combined Service and CSKT Staff in All Programs
AFA Alternatives We Are Considering
Alternative A--Current Management (No Action)
In accordance with approved Service plans and policies and under
the supervision and leadership of the refuge manager, our employees
would plan, design, and conduct all work on the refuge complex,
augmented as needed by contractors, volunteers, and cooperators such as
universities and researchers. We would keep the nine current permanent
positions and convert the two term positions (fish and wildlife
biologist and maintenance worker) back to permanent status. Our program
leaders in the biology, visitor services, and maintenance programs
would continue to recruit and supervise or lead the respective staff in
their programs. A GS-9 outdoor recreation planner may be utilized to
help develop programs and projects and to manage the visitor center for
the 200,000 visitors that come to the refuge complex each year,
bringing the staff to 12 permanent employees. We would continue
targeted recruiting of CSKT members and descendants for seasonal
positions, vacated permanent positions, and the Federal Pathways
Programs for students, which would give individuals the experience and
opportunity to qualify for careers with us or other agencies.
We would continue to coordinate with CSKT as the entity responsible
for wildlife management throughout the surrounding Flathead Indian
Reservation and as the owner of the lands on which the Ninepipe and
Pablo Refuges are situated and other adjoining tribal lands. Our
informal and formal cooperation with CSKT would continue on issues such
as invasive plant species control, fire management, trumpeter swan
restoration, habitat management and native plant restoration, and
grizzly bear and gray wolf management on the reservation.
Under the leadership of our supervisory wildlife biologist, we
would continue to plan, design, and manage all biological programs to
support and accomplish the purposes for which each unit of the refuge
complex was established. We would continue to set annual priorities,
designing and monitoring short- and long-term projects to better
understand the resources of the refuge complex and address management
concerns. Inventory and monitoring programs would continue to focus on
Federal trust species and the biological resources that support those
species. The biological staff would develop or update our long-range
management plans such as the 15-year Comprehensive Conservation Plan
and
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the habitat management plan. We would develop these documents with the
full involvement of various partners CSKT and the State of Montana.
The quality of the forage, including the spread of invasive plant
species and the effects of other grazing animals and insects, would
continue to be monitored and managed on the Bison Range to improve
range health for bison forage while providing a diversity of habitats
for other native wildlife. We would continue to inventory and monitor
infestations of invasive plant species and develop and apply treatment
strategies, using an integrated approach of chemical, biological,
cultural, and mechanical methods. We would continue to coordinate with
CSKT and other partners in Lake and Sanders Counties, to develop a
treatment strategy that identifies priorities, new invaders, and
treatment areas that would have a greater effect on a larger landscape.
We would coordinate water level management on the Ninepipe and
Pablo Refuges and waterfowl production areas with CSKT and the Flathead
Irrigation District. We would use water level management structures to
optimize nesting, feeding, and brood-rearing habitat for waterfowl and
other waterbirds.
Bird surveys, including surveys of waterfowl, neotropical migrants,
and resident birds, would continue to be designed and carried out by
our staff or coordinated with other agencies such as the CSKT Division
of Fish, Wildlife, Recreation, and Conservation (FWRC). We would
conduct annual big game counts, per recommendations in the Bison
Range's Fenced Animal Management Plan.
We would continue to monitor bison health and genetic integrity in
coordination with the Service's Wildlife Health Office (WHO). We would
monitor the health of our bison herd, including conducting necropsies
to prevent the spread of disease. Our maintenance and biological staff
would plan and conduct the annual bison roundup to collect genetic
information and monitor herd health.
Under the leadership of our supervisory outdoor recreation planner,
we would continue to plan and execute all visitor services programs,
which would focus on the mission of the Service, refuge management
programs, cultural importance of the refuge complex, and our Federal
trust species such as bison and migratory birds, other resident
wildlife, and their native habitat needs. We would continue to provide
hunting and fishing opportunities on specific units within the refuge
complex, following Federal, State, and reservation laws. We would
continue to develop and provide environmental education and
interpretive programs to local schools and conduct outreach through
local media and online resources to educate the public about the refuge
complex, the Service, and the Refuge System. Our supervisory outdoor
recreation planner would be responsible for developing long-range
management plans, including the 15-year Comprehensive Conservation Plan
and the Visitor Services Plan for the refuge complex.
Under the direction of our lead maintenance employee, we would
continue to be responsible for all projects and programs associated
with the maintenance program, including the maintenance and repair of
all facilities, roads, equipment, and vehicles, to provide dependable,
safe, and secure operating conditions for all programs. Our maintenance
staff would continue to assist with habitat management projects, such
as invasive species control, haying and grazing programs, habitat
restoration, and water level management. Our maintenance staff would
also continue to be responsible for the movement of bison for grazing
management and the annual roundup activities necessary for monitoring
herd health and excessing animals. Using horses, our maintenance staff
would relocate bison every 2 to 3 weeks (April through September) to
manage refuge habitats and provide optimal grazing opportunities. They
would also continue to lead the operations needed to move bison through
the corral system during the annual roundup, upgrading and maintaining
this system as needed. The two highest graded maintenance employees
would continue to train other employees, including management and
biology staff, on how to safely assist with these operations.
Alternative B--Proposed Action
We would execute and carry out the draft AFA negotiated with CSKT
during 2011-2012 (appendix A). CSKT would be responsible for designing,
implementing, and managing the biology, fire, maintenance, and visitor
services programs, as described in alternative A, in accordance with
approved Service plans and policies. Three of the 11 current Service
employees--refuge manager, deputy refuge manager, and law enforcement
officer--would remain employed by us. Remaining staff would be assigned
or transferred to CSKT. Five permanent employees--a GS-12 supervisory
wildlife biologist, GS-9 range conservationist, WG-9 equipment
operator, WG-8 maintenance worker, and GS-7 range (fire) technician--
would be asked to sign Intergovernmental Personnel Act (IPA) agreements
assigning them to work for CSKT. IPA assignments are voluntary, and
must be agreed to by our employees. The GS-11 supervisory outdoor
recreation planner position would remain with the Service until that
employee transfers or retires. At that time, the position and funding
would be given to CSKT for recruitment of its own employee. Two 4-year
term positions--a WG-7 maintenance worker and a GS-9 fish and wildlife
biologist--would not be renewed. These positions would be converted to
permanent positions and their salaries and duties would be transferred
to CSKT for recruitment. Providing CSKT with these 8 permanent
positions would allow CSKT to manage and implement refuge programs,
including supervising all program leaders and support staff and
recruiting and supervising volunteers.
We would provide funding to CSKT for recruitment of two to six
seasonal employees to support all refuge complex programs and a GS-11
(equivalent) wildlife refuge specialist. The wildlife refuge specialist
would be supervised by the manager of the CSKT FWRC, but would receive
day-to-day direction from either our refuge manager or deputy refuge
manager. The wildlife refuge specialist would supervise all CSKT and
IPA Service staff, directing the day-to-day work of employees and
volunteers in the biology, fire, maintenance, and visitor services
programs. In the absence of the CSKT wildlife refuge specialist, a
CSKT-designated official would fulfill these duties.
A refuge complex leadership team would be formed to develop annual
work plans, set work priorities, address performance and conduct
issues, prepare periodic status reports, and resolve disputes. The
leadership team would include our refuge manager and deputy refuge
manager, the CSKT wildlife refuge specialist, and the manager of the
CSKT FWRC. The team would meet as needed to discuss management plans
and address issues.
Alternative C
We would negotiate an AFA with CSKT authorizing it to conduct the
fire management program and collaborate on all aspects of the visitor
services program. All work of the refuge complex, as described in
alternative A, would be accomplished under the supervision and
leadership of our refuge manager or deputy refuge manager and our
program leaders in accordance with approved Service plans and policies.
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The Service would retain all current Federal positions and convert the
two term positions--fish and wildlife biologist and maintenance
worker--back to permanent status.
CSKT Fire Management Division staff would implement the fire
management program. The Division (under the Tribes' Forestry
Department) is responsible for wildland fire management, including fire
preparedness, wildfire suppression, and application of prescribed fire
on the Flathead Indian Reservation. We would provide funding to CSKT to
recruit a GS-9 (equivalent) outdoor recreation planner and up to four
seasonal CSKT employees to implement the visitor services program,
including operating the visitor center and greeting and orienting
visitors. The CSKT outdoor recreation planner would supervise these
seasonal CSKT employees and work alongside our supervisory outdoor
recreation planner. They would collaborate on interpretive and
education programs and on providing visitors with information on the
resources, management, history, and cultural significance of the refuge
complex.
Alternative D
In addition to the fire operations and visitor services programs as
described in alternative C, CSKT would receive funding to recruit up to
three more seasonal employees (in addition to the four seasonal visitor
services staff). These added CSKT employees would support the biology
and maintenance programs. Our Service leaders would train and lead all
CSKT staff in all programs. The long-term objective would be to
transfer more of the permanent positions to CSKT over time, through
attrition and negotiation.
All work of the refuge complex, as described in alternative A,
would be accomplished under the supervision and leadership of our
refuge manager or deputy refuge manager and our program leaders, in
accordance with approved Service plans and policies. The approach would
be to provide the opportunity and time needed for the new CSKT
employees to gain the experience and knowledge necessary to fully
perform the activities of permanent positions. In addition to the
refuge manager, deputy refuge manager, and law enforcement officer, the
Service would retain the program leader or highest graded positions in
the biology, maintenance, and visitor services program. We would also
retain the second highest graded maintenance worker. These seven
positions could continue refuge programs and train new employees,
including new CSKT staff, regardless the status of an AFA. The current
term positions (fish and wildlife biologist and maintenance worker)
would be converted to permanent. Four positions could transfer to CSKT
(after being vacated through transfer, retirement, or resignation)
including a GS-9 (equivalent) fish and wildlife biologist, GS-9
(equivalent) range conservationist, GS-7 (equivalent) range technician,
and WG-7 (equivalent) maintenance worker. As these permanent positions
were vacated, our refuge manager would renegotiate with CSKT to decide
whether or not to transfer them to CSKT. Our employees would work
closely with CSKT seasonal staff to provide the training and experience
needed to support the operations and programs of the refuge complex and
to help them compete for permanent positions with us or with CSKT.
Alternative E
In addition to transferring fire and visitor services operations to
CSKT, as described in alternatives C and D, this AFA would add more
CSKT staff positions, expanding our management capabilities on the
refuge complex. CSKT-recruited staff would be involved in all
operations on the refuge complex, particularly on the Ninepipe and
Pablo Refuges and on the nine waterfowl production areas in the WMD.
All work of the refuge complex, as described in alternative A, would be
accomplished under the supervision and leadership of our refuge manager
or deputy refuge manager and our program leaders, in accordance with
approved Service plans and policies. Under this AFA, we would provide
funding to the CSKT to recruit two new employees to help with the
management of the WMD, including a GS-11 (equivalent) wildlife refuge
specialist and a WG-6 (equivalent) maintenance worker. The manager of
the CSKT FWRC would supervise these employees.
CSKT would also be provided funding to recruit three additional
permanent employees that would support complex-wide programs, including
a WG-6 (equivalent) maintenance worker, GS-5 (equivalent) biological
science technician, a GS-9 (equivalent) range conservationist, and an
average of two to six temporary employees (depending on annual project
funding) in the biology, visitor services, and maintenance programs.
Our refuge manager and program leaders would be involved in the
recruitment and selection of all CSKT staff, working collaboratively
with both agencies' personnel or human resources offices. Initially, we
would keep nine employees, working closely with the CSKT staff to
provide the training and experience needed to support the operations
and programs of the refuge complex and safely manage our bison herd.
Through negotiation after transfer, retirement, or resignation of our
in-place employees, we may transfer up to three more positions to the
CSKT, including a GS-9 (equivalent) fish and wildlife biologist, WG-7
(equivalent) maintenance worker, and GS-7 (equivalent) range
technician.
Next Steps
After the public provides comments on the draft EA, we will present
this document, along with a summary of all substantive public comments,
to the Regional Director. The Regional Director will consider the
environmental effects of each alternative, along with information
gathered during public review, and will select a preferred alternative.
If the Regional Director finds that no significant impacts would occur,
the Regional Director's decision will be disclosed in a Finding of No
Significant Impact. If the Regional Director finds a significant impact
would occur, an environmental impact statement will be prepared. If
approved, the action in the preferred alternative will become the
proposed AFA between the Service and CSKT. This proposed AFA will be
sent to Congress for a 90-day review prior to being signed and
implemented.
Public Availability of Comments
All public comment information provided voluntarily by mail or by
phone (e.g., names, addresses, comments) becomes part of the official
public record. If requested under the Freedom of Information Act by a
private citizen or organization, the Service may provide copies of such
information.
Authority
The environmental review of this project will be conducted in
accordance with the requirements of the National Environmental Policy
Act (NEPA) of 1969, as amended (42 U.S.C. 4321 et seq.); NEPA
regulations (40 CFR parts 1500 through1508, 43 CFR part 46); other
appropriate Federal laws and regulations; Executive Order 12996; the
National Wildlife Refuge System Administration Act of 1966, as amended;
and Service policies and procedures for compliance with those laws and
regulations.
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Dated: June 6, 2014.
Matt Hogan,
Acting, Regional Director, Mountain-Prairie Region, U. S. Fish and
Wildlife Service.
[FR Doc. 2014-18450 Filed 8-4-14; 8:45 am]
BILLING CODE 4310-55-P