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<br />Federal Raslaler I Vol. 4B, No. 54 / Friduy, Murch 18, 1983 / Rules and Regulations
<br />
<br />11643
<br />
<br />million. of acre. of land within the
<br />.everal Stat.., the Dapartment of the
<br />Interior will continue to lOek new
<br />oppoMunltie. to fo.ter . "good
<br />neighbor" polley with the Slale.,
<br />
<br />124.1 GanaraI",-- prlncI......
<br />
<br />(al In g.nerallhe Sl.le. po..... broad
<br />tru.t.e and pollee powero over fi.h and
<br />wildlife wlthln their border., including
<br />n.h and wildlife fow.d on Federal land.
<br />within. St. I.. Under Ihe Property
<br />CI.u.e of lhe Con.titution. Congre.. I.
<br />given the power to "make all needful
<br />Rule. and Regulation. re.pecting the
<br />Terrilory or other Property belonging to
<br />the United Stale.,.. In the exerel.e 01
<br />power under the Property Clau.e.
<br />Congre.. m.y choo.e to preempt SI.te
<br />m.n.gement 01 fi.h .nd wildlife on
<br />rederallands 8:1d. in circumstances
<br />where the exercise of power WJder the
<br />Commerce Clause i3 availahle, Congress
<br />may chooae to establish restrictions on
<br />the t.king 01 li.h end wildlife whether
<br />or not the activity occurs on Federal
<br />lunds. 8S well 88 to estublish restrictions
<br />on p05selsin~. transporting. importing,
<br />or exporting fi.h and wildlife, Finelly. .
<br />third lourc~ of Federal constitutional
<br />authority for the m"8:nag~ment of fish
<br />.nd wildlife i. the tre.ty m.king power.
<br />This authority was first recognized in
<br />the negoti.tion of. migr.tor)' bird
<br />tre.ty with Gre.t Brit.in on behalf of
<br />Canada in 1916,
<br />(hI The exerei.. of Congre..ional
<br />power through the enactment of F.der.1
<br />fi~h and wildlife con8ervation statutes
<br />ha. gen.r.ily been e..oci.ted with the
<br />establishment of re@ulations more
<br />re.lrictive than tho.e of St.le I.w, The
<br />power of Congre.. respecting the t.klng
<br />of fish .nd wildlife h.s been exerci.ed
<br />88 a restrictive regulatory P9wer. except
<br />tn those sltuaHons where the ta.king of
<br />these reSQurces is necessary to protect
<br />Feder.1 property, With the.e exception..
<br />end de.pite the exi.tence of
<br />constitutional power respecting fish and
<br />wildlife on Federslly owned I.nd..
<br />Congre.. h... ie f.ct, reoffirmed Ihe
<br />basic responsibility Hnd authority of the
<br />States 10 munage liPh and reBident
<br />wildlile on Feder.1 i.n~,a,
<br />(c) Consre.. has ch.rged the
<br />Secretary of the Interior with
<br />rCRponsibilllies fur the mamlgemenl of
<br />certain fish and wildlife resourced, e.g..
<br />endansered and Ihreateneu speciel, .
<br />migratory birds. certain marine
<br />milmmitls. and certuin aspects of the
<br />management of f.ome anadrorr':JulI fillh.
<br />However, even in these specific
<br />inslances. with the limiled exception uf
<br />marine mammals, Slale jU/isdiction
<br />remaius con~urrent with Federal
<br />authority,
<br />
<br />S..AIHOJO lOOJ(ClOX17-MAR-SJ-tllN91
<br />
<br />1 24,4 R__ manage......t and public
<br />_. on '-.alland..
<br />
<br />(a) The lour major .ystem. of Federel
<br />lands joministered by the Dep.rtmen.
<br />ol the Interior .re land. udministered by
<br />the Bure.u of Reclamation, Bureau 01
<br />Land Mantlgemenl, unils of the Nillionul
<br />Wildlife Refuge Sy"em and na'iunal
<br />fi.h hatcheries, and unils of the National
<br />Park Syatem.
<br />(bl The Bure.u 01 Recl.mation
<br />wlthdr.w. public lands and acquire.
<br />non.Federallunds for construction and
<br />operation of water resource
<br />developmen' project. within the 17
<br />Weltern Slates. Recreation and
<br />conservation or enhancement of fish and
<br />wildlife resourceR are often deaiHnated
<br />project purposes, General authority for
<br />Reclamation to modify project
<br />structures. dp.velop facilities. and
<br />acquire landli to pc.commodate fish and
<br />wildlife resources is g!verl to the Fish
<br />and Wildlife Coordination Act of 1946,
<br />.. emend.d (16 U,S.C, 661~7.I, That
<br />act furth'3r proviae:: that the landtl.
<br />Willers am: facilities desisnaled for fitlh
<br />and wildlife manugement purposes. in
<br />most instancelJ. should be made
<br />available by cooperative agreement to
<br />the agent;y exercisill8 the administration
<br />of these resources of the particular Slate
<br />involved, The Feder.1 Waler Project
<br />Recreation Act or 1965, a8 amen~ed,
<br />allo direct. Reclamation to encourage
<br />non-F.deral public bodie. 10 .dminister
<br />project land and wllter areas for
<br />recre.lion .nd fi.h and wildlife
<br />enhancement. Rer.lamation withdrawl:Il.
<br />however. does not enlarg~ the power of
<br />the United Sto'e. with respect to
<br />management of fish and resident
<br />wildlife and, except for activilies
<br />specified in Seclion 111.3 above. basic
<br />authority .nd re.pon.ibility lor
<br />management oi fish und resident
<br />wildlile on .uch I.nd. remaina with Lh.
<br />State.
<br />Ie) BLM-.dminialered land. compriae
<br />in excess of 300 million aCl'ea that
<br />support aignificailt and divers~
<br />populations of fish .nd wildlife,
<br />Congreas in the Feder.1 Land Policy and
<br />Management Act of 1976 143 U.S,C, 1701
<br />et seq.) directed that nan.wildern~88
<br />BLM land. b. ma"osed by the Secretary
<br />under principles of multiple use und
<br />sUfltained yield. and for both wilderness
<br />and non-wilderness lands explu.:itly
<br />recosnizcd Hnd reaffirmed the primary
<br />authority and responsibility of the
<br />Stales for management of fish IInd
<br />resident wildlife on 9111.:h Illnd~.
<br />Concumitantly. the Secrelury uf Ihe
<br />Inl~rior is duuged wilh the
<br />r~8ponsibility 10 manage non-wilt..!ernestl
<br />BlM hUlds fur multiple UHP.8. including
<br />fish and wildlife conservation. Ilowever.
<br />
<br />lhis uuthurily to munUHI~ lalH.!s fur fish
<br />IInci wildlife vl:llucs is not a preemption
<br />of StutP. jurisdiction over fish and
<br />wildlife. In exereiaing thi. respon.ibilily
<br />the Secretary is empowered to c1o.e
<br />areo. to hunling, fi.hing or Ir.pping for
<br />sJ.lecified reusons viz.. pulJlic safety.
<br />udministralion. or compliance with
<br />provisions of applicable I.w, The
<br />elo.ure .uthority olthe Secretary is thu.
<br />Ii power to close area8 to particuhu
<br />activities for particular reaSons ilnd
<br />dues not in und of itself constitute a
<br />grant of .uthority to the Secret.ry to
<br />mansse wildlife or rer,,:Iire or authorize
<br />the ia.uante of hunting .nd/or fi.hing
<br />pennits or Iicenlfes.
<br />ldl While the .overal St.t.. therefore
<br />posse",s primary authority and
<br />responsibility ror manasement of rish
<br />and resident wildlife on Bureau of Land
<br />Management hinds. the Secrelary,
<br />through the Bur.au of L.nd
<br />Managomenl. has custody of the land
<br />its.11 and the habils' upon which fish
<br />and resident wildlife Hre dependent.
<br />MunaRer.1enl of the habitat is a
<br />respon.ihility 01 the F.deral
<br />Government. Neverlheless. Congretls in
<br />the Sikes Act hus directed the Secretary
<br />of the Interior 10 couperule v.!th thp
<br />~tates in developJn~ programs on
<br />cerlain public londs, including tho tie
<br />.dmini.tered by BLM and the
<br />Deporlment of Delen.e, for the
<br />conservation and rehabilitation of fish
<br />and wildlife iocluding specific h.bitat
<br />ir.:provement projects.
<br />(e) Unit. of the Nelionsl Wildlile
<br />Refuge System occur in nearly every
<br />State and constitute Federally owned or
<br />controlled areas set Hside primarily a8
<br />conservatiCln areas for migratory
<br />watelfowl and olher species of fish or
<br />wildlile, Units 01 the .y. tem also
<br />provide outdoor enjoym('nl for miHior.s
<br />of visitors annually for the purpoac of
<br />hunting. fishing and Wildlife-associated
<br />rccrf~ulian. In 1962 anc 1066. Congress
<br />authorized the u.e 01 Nationol Wildlife
<br />Refuges ror outdoor recreation provided
<br />thut it is compatible with the primliry
<br />purposes fo: which the particular refuge
<br />Wll5 cslahlished. In cuntrasllo multipif~
<br />use public.: lands. the conservation.
<br />t:l\hu.ncemtmt k'ind perpetual~on of fish
<br />und wildlife is almost invariably Ihe
<br />pnnLiptil reHtlUn for Ihl~ I:Nluhlitlhmenl of
<br />tI unil of the NUlional Wildlife RefuRe
<br />Sy~'em. In COHUfll.juenCe, Federall:lclivity
<br />respecllnH mllnHMcmp.nt of migrlllory
<br />wHlerfuwlllnd other wildlife reliidinlol on
<br />ullitH of the NHliollul Wildlife Rdugl!
<br />Syt)h!11I invol...eH II Fel.Jcrul function
<br />specifically authorized by Congress. 11 is
<br />therefore fur the Secn!tal'Y tv tletermine
<br />whether unit~ of the System shull bp.
<br />open III public USt~S, such as hunliliH and
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