[Federal Register Volume 61, Number 106 (Friday, May 31, 1996)]
[Notices]
[Pages 27363-27365]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-13538]



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DEPARTMENT OF THE INTERIOR

Fish and Wildlife Service


Availability of the Final Joint Programmatic Environmental Impact 
Report and Environmental Impact Statement on the Proposed Issuance of 
Incidental Take Permits for the Coastal California Gnatcatcher and Six 
Other Listed Species in the Central and Coastal Natural Community 
Conservation Planning Subregion of Orange County, CA

AGENCY: Fish and Wildlife Service, Interior.

ACTION: Notice of availability.

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SUMMARY: This notice advises the public that the Final Environmental 
Impact Report/Environmental Impact Statement (EIR/EIS) on the proposed 
issuance of nine incidental take permits for seven listed species in 
the Central and Coastal Natural Community Conservation Planning (NCCP) 
Subregion of Orange County, California, is available. Publication of 
the Record of Decision and issuance of the permits will occur no sooner 
than 30 days from the date of this notice. This notice is provided 
pursuant to regulations implementing the National Environmental Policy 
Act (40 CFR 1506.6).

ADDRESSES: The documents discussed herein are available for public 
inspection, by appointment, during normal business hours, at the 
Carlsbad Field Office, U.S. Fish and Wildlife Service, 2730 Loker 
Avenue West, Carlsbad, California 92008 (telephone: 619-431-9440); and 
at the Planning Department, Orange County Environmental Management 
Agency, 300 North Flower Street, Santa Ana, California 92702 
(telephone: 714-834-5550).

FOR FURTHER INFORMATION CONTACT: Mr. Gail Kobetich, Field Supervisor, 
U.S. Fish and Wildlife Service (see ADDRESSES above), telephone: 619-
431-9440; or Mr. Tim Neely, Planning and Zoning Administrator, Orange 
County Environmental Management Agency (see ADDRESSES above), 
telephone: 714-834-2552.

SUPPLEMENTARY INFORMATION:

Availability of Documents

    Copies of the Final EIR/EIS and associated documents (comment 
letters on the Draft EIS/EIR, response to comments, the final 
Implementation Agreement, and final maps) can be obtained by contacting 
the Carlsbad or Santa Ana offices listed above (see ADDRESSES). The 
response to comments addresses changes that were made in draft 
documents associated with the permit applications that previously were 
made available for public review. The complete application file may be 
viewed during normal business hours, by appointment, at the Carlsbad 
and Santa Ana offices. A letter announcing availability of the Final 
EIR/EIS has been forwarded to all parties who previously received the 
notice of availability of the Draft EIR/EIS, and/or who requested a 
copy of, or commented on, the Draft EIR/EIS.

Background

    On March 30, 1993, the U.S. Fish and Wildlife Service (Service) 
published a final rule determining the coastal California gnatcatcher 
(Polioptila californica californica) as a threatened species (58 FR 
16742). The ``take'' of threatened and endangered species is prohibited 
under section 9 of the Act and its implementing regulations. Take is 
defined in part as killing, harming or harassing listed species, 
including significant habitat modification that kills or injures listed 
species. The Service, however, may issue permits under section 10 of 
the Act to conduct activities involving the take of threatened and 
endangered species under certain circumstances, including carrying out 
scientific activities, enhancing the propagation or survival of the 
species, or incidentally taking the species in connection with 
otherwise lawful activities. Regulations governing such permits are at 
50 CFR 17.22 and 17.32.
    On December 10, 1993, the Service issued a final special rule for 
the coastal California gnatcatcher, pursuant to section 4(d) of the Act 
(58 FR 65088). Incidental take of the gnatcatcher is allowed under the 
special rule if such take results from activities conducted under a 
plan prepared pursuant to the NCCP Act of 1991, NCCP Process 
Guidelines, and the NCCP Southern California Coastal Sage Scrub 
Conservation Guidelines. The special rule also requires Federal 
approval of the NCCP Plan/Habitat Conservation Plan (HCP).
    The County of Orange (lead applicant), University of California-

[[Page 27364]]

Irvine, Transportation Corridor Agencies, Metropolitan Water District, 
Santiago County Water District, Irvine Ranch Water District, The Irvine 
Company, Chandis-Sherman Companies, and Southern California Edison each 
have applied to the Service for a 75-year incidental take permit 
pursuant to section 10(a)(1)(B) of the Act. In addition, the cities of 
Anaheim, Costa Mesa, Irvine, Laguna Beach, Laguna Niguel, Lake Forest, 
Newport Beach, Orange, and Tustin also may apply for individual 
permits. Should any of these cities apply for individual permits, the 
Final EIR/EIS will be used to satisfy their State and Federal 
environmental documentation requirements. In support of their permit 
application package, the applicants have prepared a NCCP Plan/HCP and 
an IA for the Central and Coastal NCCP Subregion of Orange County 
(Subregion). In December 1995, these documents were circulated for 
review and comment, along with the Draft
EIR/EIS.
    Under the proposed action, section 10(a)(1)(B) permits would be 
issued by the Service subject to the terms and conditions of the NCCP 
Plan/HCP and its IA. The proposed permits would authorize the 
incidental take of 44 species, 7 of which are listed species, 
including: the threatened coastal California gnatcatcher, and the 
endangered American peregrine falcon (Falco peregrinus anatum), 
Riverside fairy shrimp (Streptocephalus woottoni), arroyo southwestern 
toad (Bufo microscaphus californicus), least Bell's vireo (Vireo bellii 
pusillus), southwestern willow flycatcher (Empidonax traillii extimus), 
and the Pacific pocket mouse (Perognathus longimembris pacificus). 
Consistent with the U.S. Department of the Interior's ``No Surprises'' 
Policy, the permit applicants also request coverage of an additional 37 
currently unlisted plant and animal species that occur within the NCCP 
Plan/HCP area, including 5 species proposed for listing as threatened 
or endangered, and 5 plant species on the Dana Point Headlands 
(Headlands) only. The NCCP Plan/HCP would conserve the 37 unlisted 
species according to standards required for species listed under the 
Act. Unlisted species would be named on the permits, with incidental 
take becoming effective upon their listing under the Act.
    Although the NCCP Plan/HCP has focused on coastal sage scrub 
habitat (CSS), in keeping with the legislative intent of the California 
NCCP Act of 1991 to protect multiple habitat types, the applicants 
propose to protect four additional habitat types to the extent that no 
additional mitigation or compensation would be required of 
participating landowners should any species dependent upon or 
associated with these habitats be listed during the 75-year permit 
period. These habitat types are: oak woodlands, Tecate cypress forest, 
cliff and rock, and chaparral (coastal subarea only). Should any 
species dependent upon or associated with these habitats be listed in 
the future, the Service will assume the responsibility for any 
additional mitigation measures, above and beyond the NCCP Plan/HCP 
implementation program, that would be required to provide the 
regulatory basis for issuing section 10(a)(1)(B) permits to 
participating landowners.
    The NCCP Plan/HCP subregional planning area includes approximately 
208,000 acres, of which about 104,000 acres remain as natural lands 
that are subject to intense development pressure. The Subregion 
contains about 30,833 acres of CSS supporting approximately 600 pairs 
of California gnatcatchers. Under the NCCP Plan/HCP, 5,336 acres of 
CSS, currently supporting 110 pairs of gnatcatchers, could be 
incidentally taken as a result of development by participating 
landowners. In addition, development of 2,108 acres of CSS habitat, 
currently supporting 11 pairs of gnatcatchers, could be incidentally 
taken by activities of non-participating landowners. Other habitats 
associated with CSS could also be developed, including about 2,550 
acres of chaparral and 12,025 acres of grasslands.
    The applicants propose to minimize and mitigate the impacts of take 
by establishing a 37,378-acre Reserve System. The Reserve System will 
contain more than 18,527 acres of CSS, 6,950 acres of chaparral, 5,732 
acres of grasslands, and other habitats. The Reserve System will be 
managed by its public owners according to comprehensive management 
plans, including, but not limited to, fire management, grazing 
management, recreation/public access management, and habitat 
restoration plans. Such management will be funded by an endowment fund 
in excess of $10.6 million, and by mitigation fees contributed by non-
participating landowners who elect to use this fee option rather than 
pursue an individual HCP. Management of reserve lands will be 
coordinated by a non-profit Board of Directors, to be composed of 
public and private landowners, the California Department of Fish and 
Game (CDFG), and the Service.
    To supplement the Reserve System, 1,906 acres are designated as 
Special Linkage Areas and another 3,796 acres are designated as 
Existing Use Areas. Another 3,831 acres within the Subregion will 
remain as public Open Space. The NCCP Plan/HCP also includes guidelines 
for the North Ranch Policy Plan Area to ensure that any future 
development in this area protects the reserve and subregional 
biodiversity. No take of covered species would be authorized in the 
Existing Use Areas or North Ranch Policy Plan Area.
    Of the 44 covered species addressed in the NCCP Plan/HCP, 10 are 
conditionally covered and will be subject to specified mitigation 
measures, in addition to the establishment and management of the 
Reserve System. Conditionally covered species include: the least Bell's 
vireo, southwestern willow flycatcher, arroyo southwestern toad, Quino 
checkerspot butterfly (Euphidryas editha quino), Riverside fairy 
shrimp, San Diego fairy shrimp (Branchinecta sandiegoensis), Pacific 
pocket mouse, golden eagle (Aquila chrysaetos), prairie falcon (Falco 
mexicanus), and the foothill mariposa lily (Calochortus weedii var. 
intermedius). In general, impacts to habitats supporting smaller 
populations of conditionally covered species would be mitigated by 
habitat enhancement or restoration within the Reserve System. 
Mitigation for impacts to habitats or populations that may have 
significant conservation value would be handled on a case-by-case 
basis. Specific provisions for the Pacific pocket mouse include the 
creation of a 22-acre temporary preserve for up to 12 years at the 
Headlands, and providing $700,000 towards a programmatic research and 
recovery effort to be initiated by the Service and CDFG; the Headlands 
landowner will contribute $350,000 to be matched by the Service. If, 
through this research and recovery effort, the Service determines that 
the Headlands site is essential for the survival and recovery of the 
species, the Service has committed to purchase the site.

Development of the Final EIR/EIS

    To assure compliance with the purpose and intent of the National 
Environmental Policy Act (NEPA) and the California Environmental 
Quality Act, the Final EIR/EIS was developed cooperatively by the 
Service's Carlsbad Field Office (lead Federal agency) and the Orange 
County Environmental Management Agency (lead State agency). On June 24, 
1993, the Service published in the Federal Register a Notice of Intent 
to prepare the EIR/EIS (58 FR 34270). This notice also

[[Page 27365]]

advertised a joint public scoping meeting, held on July 7, 1993. The 
scoping process was initiated in accordance with NEPA to solicit 
comments from a variety of Federal, State, and local entities on 
issues/alternatives to be addressed in the EIR/EIS. A report was 
prepared in September 1993, summarizing the scoping process. A joint 
Notice of Availability of the Draft EIR/EIS, and Notice of Receipt of 
applications for incidental take permits associated with the Orange 
County Central/Coastal Subregion NCCP Plan/HCP, was published in the 
Federal Register on December 15, 1995 (60 FR 64447).
    Adverse and beneficial effects, associated with the implementation 
of each alternative, were described in the Draft EIR/EIS. The Service 
received 76 letters of comment on the Draft EIR/EIS that mainly focused 
on the following issues: (1) Creation of a permanent habitat Reserve 
System; (2) Headlands/Pacific pocket mouse issues; (3) reserve design 
and process; (4) habitat coverage; (5) species coverage; (6) adequacy 
of biological linkages/connectivity; (7) Coal Canyon habitat linkage; 
(8) El Toro Marine Corps Air Station; (9) extension of the comment 
period; (10) changes requested by local jurisdictions; (11) revisions 
to the draft IA; (12) role of adaptive management; and (13) assurance 
of implementation. Copies of all comments received and responses to all 
comments are available for public review. The Draft EIR/EIS, Draft NCCP 
Plan/HCP, and Draft IA were revised, where appropriate, based on public 
comments. No new issues or additional significant impacts were 
identified as a result of public comment on the Draft EIR/EIS.

Alternatives Analyzed in the Final EIR/EIS

    Due to the scale of the NCCP program for the Subregion, the lead 
agencies assessed various regional conservation strategies and reserve 
designs. Four alternatives were advanced for detailed analysis in the 
Final EIR/EIS: (1) Proposed Project Alternative (approve and implement 
the NCCP Plan/HCP), (2) No Project/No Action Alternative, (3) No Take 
Alternative, and (4) a Programmatic Alternative. Each alternative was 
evaluated for its potential to result in significant adverse 
environmental impacts, and the adequacy or inadequacy of the proposed 
measures to avoid, minimize, and substantially reduce and mitigate such 
negative effects.
    The Service's preferred action is approval of the NCCP Plan/HCP, 
and issuance of incidental take permits with the mitigating, 
minimizing, and monitoring measures outlined in the Proposed Project 
Alternative. (See Background section for a description of this 
alternative).
    Under the No Project/No Action Alternative, a comprehensive 
regional conservation strategy would not be undertaken, and a Reserve 
System would not be established. Development would occur as planned by 
the local jurisdictions. Protection of the coastal California 
gnatcatcher and its CSS habitat, and other federally listed species, 
would occur on a project-by-project basis through the section 7 and 
section 10 processes of the Act, as appropriate. Other unlisted species 
might be protected if included in the planning process for each 
project.
    The No Take Alternative is similar to the No Project Alternative, 
except that it assumes that no take of gnatcatchers or their associated 
habitat would be allowed within the Subregion pursuant to section 9 of 
the Act, and that the section 7 and 10 processes would not be used to 
authorize or exempt such incidental take. Development would be limited 
to those projects that do not result in take of the gnatcatcher or its 
occupied habitat. Protection of other species (not federally listed) 
would occur only to the extent currently required by State 
environmental regulations.
    Similar to the Proposed Project Alternative, the Programmatic 
Alternative would involve a subregional conservation strategy, 
including the creation of a large-scale habitat reserve and the 
implementation of a long-term management program. However, under the 
programmatic approach, specific boundaries for a habitat reserve system 
and design of the management program would be developed over time, as 
specific projects requiring mitigation are undertaken that contribute 
mitigation fees or dedication lands to a management entity.
    The underlying goal of the Proposed Project Alternative is to 
implement ecosystem-based conservation measures, aimed at the 
protection of multiple species and multiple habitats on a regional 
scale, while accommodating compatible development. The Central and 
Coastal Orange County NCCP Plan/HCP would result in the implementation 
of a comprehensive reserve strategy for CSS and related habitats in the 
Subregion, that is expected to provide long-term benefits to the 
coastal California gnatcatcher and 43 other covered species and their 
habitats. The Service intends to approve the Orange County Central/
Coastal NCCP Plan/HCP and issue section 10 incidental take permits to 
the applicants.

    Dated: May 23, 1996.
Thomas J. Dwyer,
Regional Director, Region 1, Portland, OR.
[FR Doc. 96-13538 Filed 5-30-96; 8:45 am]
BILLING CODE 4310-55-P