82_FR_60563 82 FR 60320 - Final Supplementary Rules for Guffey Gorge in Park County, Colorado

82 FR 60320 - Final Supplementary Rules for Guffey Gorge in Park County, Colorado

DEPARTMENT OF THE INTERIOR
Bureau of Land Management

Federal Register Volume 82, Issue 243 (December 20, 2017)

Page Range60320-60323
FR Document2017-27413

The Bureau of Land Management (BLM) Royal Gorge Field Office is implementing supplementary rules to regulate certain activities on public lands within Guffey Gorge in Park County, Colorado. These supplementary rules are necessary to implement decisions found in the Guffey Gorge Management Plan approved on June 29, 2015, to provide for the protection of persons, property, and public lands and resources located within the 80-acre site. These supplementary rules will result in changes to some currently authorized activities related to the possession or use of alcohol, amplified music, vehicle parking, and visitors with dogs.

Federal Register, Volume 82 Issue 243 (Wednesday, December 20, 2017)
[Federal Register Volume 82, Number 243 (Wednesday, December 20, 2017)]
[Rules and Regulations]
[Pages 60320-60323]
From the Federal Register Online  [www.thefederalregister.org]
[FR Doc No: 2017-27413]


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DEPARTMENT OF THE INTERIOR

Bureau of Land Management

43 CFR Part 8360

[LLCOF02000.L12200000.DU0000-17X]


Final Supplementary Rules for Guffey Gorge in Park County, 
Colorado

AGENCY:  Bureau of Land Management, Interior.

ACTION:  Final supplementary rules.

-----------------------------------------------------------------------

SUMMARY:  The Bureau of Land Management (BLM) Royal Gorge Field Office 
is implementing supplementary rules to regulate certain activities on 
public lands within Guffey Gorge in Park County, Colorado. These 
supplementary rules are necessary to implement decisions found in the 
Guffey Gorge Management Plan approved on June 29, 2015, to provide for 
the protection of persons, property, and public lands and resources 
located within the 80-acre site. These supplementary rules will result 
in changes to some currently authorized activities related to the 
possession or use of alcohol, amplified music, vehicle parking, and 
visitors with dogs.

DATES: These supplementary rules are effective January 19, 2018.

ADDRESSES:  You may send inquiries by mail or hand delivery to Linda 
Skinner, Outdoor Recreation Planner, BLM Royal Gorge Field Office, 3028 
E. Main Street,

[[Page 60321]]

Ca[ntilde]on City, CO 81212. You may also send inquiries via email to 
[email protected] (include ``Final Supplementary Rules-Guffey 
Gorge'' in the subject line).

FOR FURTHER INFORMATION CONTACT:  Linda Skinner, Outdoor Recreation 
Planner; see address in the ADDRESSES section of this notice; telephone 
(719) 269-8732. Persons who use a telecommunications device for the 
deaf (TDD) may call the Federal Relay Service at 800-877-8339 to 
contact Linda Skinner during normal business hours. The Service is 
available 24 hours a day, seven days a week, to leave a message or 
question with the above individual. You will receive a reply during 
normal business hours.

SUPPLEMENTARY INFORMATION: 

I. Background

    Guffey Gorge is an 80 acre tract of public land in Park County, 
Colorado. It is surrounded by private land with Park County Road 102 
providing legal public access. Until ten years ago, recreational use of 
this area was light, and the area was used primarily by local residents 
for picnicking, hiking, and swimming. Recreational use of the area has 
increased significantly over the past five years, resulting in resource 
damage, user conflicts, and safety hazards for visitors and surrounding 
private landowners. In 2013, the BLM began the public process for 
developing a management plan for the 80 acre parcel to manage the 
increasing visitor use and associated issues. This process included 
presentations and site tours with the Rocky Mountain (formerly Front 
Range) Resource Advisory Council (RAC) and collaboration with 
stakeholders and concerned citizens. On August 11, 2014, the BLM 
initiated a 30-day public scoping period. Based on feedback received 
during this process, the BLM developed a proposed action and released a 
preliminary Environmental Assessment (EA) for a 30-day public review on 
November 20, 2014. The BLM incorporated comments into the Final EA and 
corresponding Decision Record, signed on June 29, 2015.

II. Discussion of Public Comments and the Final Supplementary Rules

    The proposed supplementary rules were published in the Federal 
Register on June 1, 2016 (81 FR 35039). The BLM received three letters 
with comments during the 60-day comment period. One commenter supported 
a proposed fee; therefore, the comment was not relevant to the proposed 
supplementary rules. A second commenter submitted a general statement 
in support of controlling cars, trash, and people in Guffey Gorge. In 
response to this comment, the concern for controlling cars supports the 
rule that prohibits parking a motor vehicle outside of designated 
parking areas. The trash issue was addressed through the Guffey Gorge 
Management Plan, approved on June 29, 2015, by creating a standard 
amenity site with trash collection; therefore, no revision to the rules 
was needed. The third commenter shared a story about her negative 
experience at Guffey Gorge. This commenter supports a strict ban on 
alcohol consumption while visiting Guffey Gorge. The comment was noted 
as supporting the rule prohibiting the possession or consumption of 
alcoholic beverages.
    These final supplementary rules implement certain decisions from 
the Guffey Gorge Management Plan on lands administered by the Royal 
Gorge Field Office. The planning area consists of approximately 80 
acres of public lands within Park County, Colorado, in the following 
described townships:

Park County, Colorado, Sixth Principal Meridian

T. 15 S., R. 71 W,
    Section 4: SE\1/4\SE\1/4\ Section 9: NE\1/4\NE\1/4\

    These final supplementary rules are needed to address significant 
public safety concerns and resource protection issues resulting from 
increased and unsafe public use on public lands known as Guffey Gorge. 
The authority for these supplementary rules is set forth at section 310 
of the Federal Land Policy and Management Act (FLPMA), 43 U.S.C. 1740, 
and 43 CFR 8365.1-6. This notice, with a detailed map, will be posted 
at the Royal Gorge Field Office.
    These final supplementary rules will help the BLM achieve 
management objectives for the area in the following ways:
     Supplementary rule number one prohibits possession and 
consumption of alcoholic beverages. As visitation at Guffey Gorge has 
increased, alcohol and drug use has also increased, leading to public 
health and safety concerns. This supplementary rule will help reduce 
disruptive behavior associated with alcohol use, improve public safety, 
and reduce litter in the area.
     Supplementary rule number two prohibits visitors from 
parking a motor vehicle outside of designated parking areas. Visitor 
parking is limited at Guffey Gorge and frequently overflows onto the 
shoulder of Park County Road 102. Park County Road 102 is a narrow, 
two-lane road with limited visibility near the Guffey Gorge trailhead. 
Restricting parking to designated parking areas only is essential for 
public health and safety.
     Supplementary rule number three requires animals brought 
into the area to be on a leash and under the control of a person, or 
otherwise physically restricted. This rule will help reduce problems 
associated with unrestrained dogs observed by staff in recent years. 
Currently, BLM regulations only require dogs to be restrained in 
developed recreation sites. Guffey Gorge is not a developed site, so 
existing BLM regulations do not apply. This supplementary rule will 
help reduce conflicts between visitors; reduce conflicts between 
domestic animals and wildlife; and control domestic animal waste.
     Supplementary rule number four prohibits the operation of 
any device producing amplified sound, such as stereos, speakers, and 
public address systems. This supplementary rule will help restore 
opportunities for quiet recreational activities recognized as one of 
Guffey Gorge's attributes.

III. Procedural Matters

Executive Order 12866, Regulatory Planning and Review

    These supplementary rules are not significant regulatory actions 
and not subject to review by the Office of Management and Budget under 
Executive Order 12866. These supplementary rules will not have an 
annual effect of $100 million or more on the economy. They will not 
adversely affect in a material way the economy; productivity; 
competition; jobs; environment; public health or safety; or State, 
local or tribal governments or communities. These supplementary rules 
do not create a serious inconsistency or otherwise interfere with an 
action taken or planned by another agency. These supplementary rules do 
not materially alter the budgetary effects of entitlements, grants, 
user fees, or loan programs or the rights or obligations of their 
recipients; nor do they raise novel legal or policy issues. These 
supplementary rules merely establish rules of conduct for public use of 
a limited area of public lands.

National Environmental Policy Act

    During the National Environmental Policy Act (NEPA) review for the 
Guffey Gorge Management Plan, the BLM fully analyzed the substance of 
these supplementary rules in an EA, DOI-BLM-CO-200-2013-040 EA. The BLM 
signed the Decision Record for the EA on June 29, 2015, and found that 
these supplementary rules would not constitute a major Federal action

[[Page 60322]]

significantly affecting the quality of the human environment under 
Section 102(2)(C) of NEPA (42 U.S.C. 4332(2)(C)). These supplementary 
rules merely establish rules of conduct for public use of a limited 
area of public lands in order to protect natural resources and public 
health and safety. Although some activities will be prohibited in the 
area, the area will still be open to other recreation uses. A detailed 
statement under NEPA is not required. The BLM has placed the EA and 
Finding of No Significant Impact on file in the BLM Administrative 
Record at the address specified in the ADDRESSES section.

Regulatory Flexibility Act

    Congress enacted the Regulatory Flexibility Act of 1980 (RFA), as 
amended, 5 U.S.C. 601-612, to ensure that government regulations do not 
unnecessarily or disproportionately burden small entities. The RFA 
requires a regulatory flexibility analysis if a rule would have a 
significant economic impact, either detrimental or beneficial, on a 
substantial number of small entities. These supplementary rules will 
have no effect on business entities of any size. These supplementary 
rules merely impose reasonable restrictions on certain recreational 
activities on certain public lands to protect natural resources and the 
environment and human health and safety. Therefore, the BLM has 
determined under the RFA that these supplementary rules will not have a 
significant economic impact on a substantial number of small entities.

Small Business Regulatory Enforcement Fairness Act

    These supplementary rules are not a ``major rule'' as defined at 5 
U.S.C. 804(2). These supplementary rules merely impose reasonable 
restrictions on certain recreational activities on certain public lands 
to protect natural resources and the environment and human health and 
safety. These supplementary rules will not:
    (1) Have an annual effect on the economy of $100 million or more;
    (2) Cause a major increase in costs or prices for consumers; 
individual industries; Federal, State, or local agencies; or geographic 
regions; or
    (3) Have significant adverse effects on competition, employment, 
investment, productivity, or innovation; or on the ability of United 
States-based enterprises to compete with foreign-based enterprises in 
domestic and export markets.

Unfunded Mandates Reform Act

    These supplementary rules do not impose an unfunded mandate on the 
private sector; or State, local, or tribal governments of more than 
$100 million per year, nor will these supplementary rules have a 
significant or unique effect on State, local, or tribal governments or 
the private sector. These supplementary rules merely impose reasonable 
restrictions on certain recreational activities on certain public lands 
to protect natural resources and the environment and human health and 
safety. Therefore, the BLM is not required to prepare a statement 
containing the information required by the Unfunded Mandates Reform Act 
(2 U.S.C. 1531 et seq.).

Executive Order 12630, Governmental Actions and Interference With 
Constitutionally Protected Property Rights (Takings)

    These supplementary rules do not constitute a government action 
capable of interfering with constitutionally protected property rights. 
These supplementary rules will not address property rights in any form, 
and will not cause the impairment of constitutionally protected 
property rights. Therefore, the BLM has determined that these 
supplementary rules will not cause a ``taking'' of private property or 
require further discussion of takings implications under this Executive 
Order.

Executive Order 13132, Federalism

    These supplementary rules will not have a substantial direct effect 
on the states, on the relationship between the national government and 
the states, or on the distribution of power and responsibilities among 
the various levels of government. Therefore, in accordance with 
Executive Order 13132, the BLM has determined that these supplementary 
rules will not have sufficient Federalism implications to warrant 
preparation of a Federalism Assessment.

Executive Order 12988, Civil Justice Reform

    Under Executive Order 12988, the BLM Colorado State Director has 
determined that these supplementary rules will not unduly burden the 
judicial system, and that they meet the requirements of Sections 3(a) 
and 3(b) (2) of the Order.

Executive Order 13175, Consultation and Coordination With Indian Tribal 
Governments

    In accordance with Executive Order 13175, the BLM has found that 
these supplementary rules do not include policies that have tribal 
implications, and will have no bearing on trust lands or on lands for 
which title is held in fee status by Indian Tribes or U.S. Government-
owned lands managed by the Bureau of Indian Affairs.

Information Quality Act

    In developing these supplementary rules, the BLM did not conduct or 
use a study, experiment or survey requiring peer review under the 
Information Quality Act (Section 515 of Pub. L. 106-554).

Executive Order 13211, Actions Concerning Regulations That 
Significantly Affect Energy Supply, Distribution, or Use

    These supplementary rules do not constitute a significant energy 
action. These supplementary rules will not have an adverse effect on 
energy supply, production, or consumption and have no connection with 
energy policy.

Executive Order 13352, Facilitation of Cooperative Conservation

    In accordance with Executive Order 13352, the BLM has determined 
that these supplementary rules will not impede facilitating cooperative 
conservation; will take appropriate account of and consider the 
interests of persons with ownership or other legally recognized 
interests in land or other natural resources; will properly accommodate 
local participation in the Federal decision-making process; and will 
provide that the programs, projects, and activities are consistent with 
protecting public health and safety.

Paperwork Reduction Act

    These supplementary rules do not contain information collection 
requirements that the Office of Management and Budget must approve 
under the Paperwork Reduction Act of 1995, 44 U.S.C. 3501-3521.

Author

    The principal author of these final supplementary rules is Linda 
Skinner, Outdoor Recreation Planner, BLM, Royal Gorge Field Office.
    For the reasons stated in the preamble, and under the authorities 
for supplementary rules found at 43 U.S.C. 1740 and 43 CFR 8365.1-6, 
the BLM Colorado State Director establishes supplementary rules for 
approximately 80 acres of public lands in Guffey Gorge, to read as 
follows:

[[Page 60323]]

Final Supplementary Rules for Guffey Gorge

Prohibited Acts

    Unless otherwise authorized, the following acts are prohibited on 
all public lands, roads, trails, and waterways administered by the BLM 
within the Guffey Gorge Management Area:
    1. You must not possess or consume alcoholic beverages;
    2. You must not park a motor vehicle outside of designated parking 
areas;
    3. You must not bring an animal into the area, unless the animal is 
on a leash not longer than six feet and secured to a fixed object or 
under control of a person, or is otherwise physically restricted at all 
times; and
    4. You must not operate any device producing amplified sound such 
as a stereo, speaker, public address system, or other similar device.

Exemptions

    The following persons are exempt from these supplementary rules: 
Any Federal, State, local and/or military persons acting within the 
scope of their duties; members of any organized rescue or fire-fighting 
force in performance of an official duty; or individuals expressly 
authorized by the BLM.

Enforcement

    Any person who violates any of these supplementary rules may be 
tried before a United States Magistrate and fined in accordance with 18 
U.S.C. 3571, imprisoned no more than 12 months under 43 U.S.C. 1733(a) 
and 43 CFR 8360.0-7, or both. In accordance with 43 CFR 8365.1-7, State 
or local officials may also impose penalties for violations of Colorado 
law.

Gregory P. Shoop,
Acting BLM Colorado State Director.
[FR Doc. 2017-27413 Filed 12-19-17; 8:45 am]
 BILLING CODE 4310-JB-P



                                             60320        Federal Register / Vol. 82, No. 243 / Wednesday, December 20, 2017 / Rules and Regulations

                                             effect on the States, on the relationship               Protesters are asked to contact the                   permission to transit the area, the COTP
                                             between the national government and                     person listed in the FOR FURTHER                      and or designated representatives can be
                                             the States, or on the distribution of                   INFORMATION CONTACT section to                        contacted at telephone number 410–
                                             power and responsibilities among the                    coordinate protest activities so that your            576–2693 or on Marine Band Radio
                                             various levels of government. We have                   message can be received without                       VHF–FM channel 16 (156.8 MHz). The
                                             analyzed this rule under that Order and                 jeopardizing the safety or security of                Coast Guard vessels enforcing this
                                             have determined that it is consistent                   people, places or vessels.                            section can be contacted on Marine
                                             with the fundamental federalism                                                                               Band Radio VHF–FM channel 16 (156.8
                                             principles and preemption requirements                  List of Subjects in 33 CFR Part 165
                                                                                                                                                           MHz). If permission is granted, persons
                                             described in Executive Order 13132.                       Harbors, Marine safety, Navigation                  and vessels must comply with the
                                                Also, this rule does not have tribal                 (water), Reporting and recordkeeping                  instructions of the COTP or designated
                                             implications under Executive Order                      requirements, Security measures,                      representative and proceed as directed
                                             13175, Consultation and Coordination                    Waterways.                                            while within the zone.
                                             with Indian Tribal Governments,                           For the reasons discussed in the                      (4) The U.S. Coast Guard may be
                                             because it does not have a substantial                  preamble, the Coast Guard amends 33                   assisted in the patrol and enforcement
                                             direct effect on one or more Indian                     CFR part 165 as follows:                              of the safety zone by Federal, State, and
                                             tribes, on the relationship between the                                                                       local agencies.
                                             Federal Government and Indian tribes,                   PART 165—REGULATED NAVIGATION                           (d) Enforcement period. This section
                                             or on the distribution of power and                     AREAS AND LIMITED ACCESS AREAS                        will be enforced from 11 p.m. on
                                             responsibilities between the Federal                                                                          December 31, 2017 through 1 a.m. on
                                             Government and Indian tribes. If you                    ■ 1. The authority citation for part 165              January 1, 2018.
                                             believe this rule has implications for                  continues to read as follows:
                                                                                                                                                             Dated: December 14, 2017.
                                             federalism or Indian tribes, please                       Authority: 33 U.S.C. 1231; 50 U.S.C. 191;
                                                                                                                                                           Michael W. Batchelder,
                                             contact the person listed in the FOR                    33 CFR 1.05–1, 6.04–1, 6.04–6, and 160.5;
                                                                                                     and Department of Homeland Security                   Commander, U.S. Coast Guard, Acting
                                             FURTHER INFORMATION CONTACT section.
                                                                                                     Delegation No. 0170.1.                                Captain of the Port Maryland-National
                                             E. Unfunded Mandates Reform Act                                                                               Capital Region.
                                                                                                     ■ 2. Add § 165.T05–0994 to read as
                                               The Unfunded Mandates Reform Act                                                                            [FR Doc. 2017–27381 Filed 12–19–17; 8:45 am]
                                                                                                     follows:
                                             of 1995 (2 U.S.C. 1531–1538) requires                                                                         BILLING CODE 9110–04–P

                                             Federal agencies to assess the effects of               § 165.T05–0994 Safety Zone; Spa Creek,
                                             their discretionary regulatory actions. In              Annapolis, MD.
                                             particular, the Act addresses actions                     (a) Definitions. As used in this                    DEPARTMENT OF THE INTERIOR
                                             that may result in the expenditure by a                 section:
                                             State, local, or tribal government, in the                Captain of the Port means the                       Bureau of Land Management
                                             aggregate, or by the private sector of                  Commander, U.S. Coast Guard Sector
                                             $100,000,000 (adjusted for inflation) or                Maryland-National Capital Region.                     43 CFR Part 8360
                                             more in any one year. Though this rule                    Designated representative means any                 [LLCOF02000.L12200000.DU0000–17X]
                                             will not result in such an expenditure,                 Coast Guard commissioned, warrant, or
                                             we do discuss the effects of this rule                  petty officer who has been authorized                 Final Supplementary Rules for Guffey
                                             elsewhere in this preamble.                             by the Captain of the Port Maryland-                  Gorge in Park County, Colorado
                                                                                                     National Capital Region to assist in
                                             F. Environment                                          enforcing the safety zone described in                AGENCY:   Bureau of Land Management,
                                               We have analyzed this rule under                      paragraph (b) of this section.                        Interior.
                                             Department of Homeland Security                           (b) Location. The following area is a               ACTION: Final supplementary rules.
                                             Management Directive 023–01 and                         safety zone: All navigable waters of Spa
                                                                                                     Creek, within 133 yards of a fireworks                SUMMARY:    The Bureau of Land
                                             Commandant Instruction M16475.lD,
                                                                                                     barge in approximate position latitude                Management (BLM) Royal Gorge Field
                                             which guide the Coast Guard in
                                                                                                     38°58′33.01″ N, longitude 076°28′58.00″               Office is implementing supplementary
                                             complying with the National
                                                                                                     W, located at Annapolis, MD. All                      rules to regulate certain activities on
                                             Environmental Policy Act of 1969 (42
                                                                                                     coordinates refer to North American                   public lands within Guffey Gorge in
                                             U.S.C. 4321–4370f), and have
                                                                                                     Datum 83 (NAD 1983).                                  Park County, Colorado. These
                                             determined that this action is one of a
                                                                                                       (c) Regulations. The general safety                 supplementary rules are necessary to
                                             category of actions that do not
                                                                                                     zone regulations found in subpart C of                implement decisions found in the
                                             individually or cumulatively have a
                                                                                                     this part apply to the safety zone created            Guffey Gorge Management Plan
                                             significant effect on the human
                                                                                                     by this section.                                      approved on June 29, 2015, to provide
                                             environment. This rule involves a safety
                                                                                                       (1) All persons are required to comply              for the protection of persons, property,
                                             zone lasting less than two hours that
                                                                                                     with the general regulations governing                and public lands and resources located
                                             would prohibit entry within 133 yards
                                                                                                     safety zones found in § 165.23.                       within the 80-acre site. These
                                             of a fireworks barge. It is categorically
                                                                                                       (2) Entry into or remaining in this                 supplementary rules will result in
                                             excluded from further review under
                                                                                                     zone is prohibited unless authorized by               changes to some currently authorized
                                             paragraph 34(g) of Figure 2–1 of the
                                                                                                     the Captain of the Port (COTP) or                     activities related to the possession or
                                             Commandant Instruction. A Record of
                                                                                                     designated representative. All vessels                use of alcohol, amplified music, vehicle
                                             Environmental Consideration
                                                                                                                                                           parking, and visitors with dogs.
ethrower on DSK3G9T082PROD with RULES




                                             supporting this determination is                        underway within this safety zone at the
                                             available in the docket where indicated                 time it is implemented are to depart the              DATES: These supplementary rules are
                                             under ADDRESSES.                                        zone.                                                 effective January 19, 2018.
                                                                                                       (3) Persons desiring to transit the area            ADDRESSES: You may send inquiries by
                                             G. Protest Activities                                   of the safety zone must first obtain                  mail or hand delivery to Linda Skinner,
                                               The Coast Guard respects the First                    authorization from the COTP or                        Outdoor Recreation Planner, BLM Royal
                                             Amendment rights of protesters.                         designated representative. To request                 Gorge Field Office, 3028 E. Main Street,


                                        VerDate Sep<11>2014   16:19 Dec 19, 2017   Jkt 244001   PO 00000   Frm 00040   Fmt 4700   Sfmt 4700   E:\FR\FM\20DER1.SGM   20DER1


                                                          Federal Register / Vol. 82, No. 243 / Wednesday, December 20, 2017 / Rules and Regulations                                         60321

                                             Cañon City, CO 81212. You may also                     trash, and people in Guffey Gorge. In                 parking areas only is essential for public
                                             send inquiries via email to rgfo_                       response to this comment, the concern                 health and safety.
                                             comments@blm.gov (include ‘‘Final                       for controlling cars supports the rule                  • Supplementary rule number three
                                             Supplementary Rules-Guffey Gorge’’ in                   that prohibits parking a motor vehicle                requires animals brought into the area to
                                             the subject line).                                      outside of designated parking areas. The              be on a leash and under the control of
                                             FOR FURTHER INFORMATION CONTACT:                        trash issue was addressed through the                 a person, or otherwise physically
                                             Linda Skinner, Outdoor Recreation                       Guffey Gorge Management Plan,                         restricted. This rule will help reduce
                                             Planner; see address in the ADDRESSES                   approved on June 29, 2015, by creating                problems associated with unrestrained
                                             section of this notice; telephone (719)                 a standard amenity site with trash                    dogs observed by staff in recent years.
                                             269–8732. Persons who use a                             collection; therefore, no revision to the             Currently, BLM regulations only require
                                             telecommunications device for the deaf                  rules was needed. The third commenter                 dogs to be restrained in developed
                                             (TDD) may call the Federal Relay                        shared a story about her negative                     recreation sites. Guffey Gorge is not a
                                             Service at 800–877–8339 to contact                      experience at Guffey Gorge. This                      developed site, so existing BLM
                                             Linda Skinner during normal business                    commenter supports a strict ban on                    regulations do not apply. This
                                             hours. The Service is available 24 hours                alcohol consumption while visiting                    supplementary rule will help reduce
                                             a day, seven days a week, to leave a                    Guffey Gorge. The comment was noted                   conflicts between visitors; reduce
                                             message or question with the above                      as supporting the rule prohibiting the                conflicts between domestic animals and
                                             individual. You will receive a reply                    possession or consumption of alcoholic                wildlife; and control domestic animal
                                             during normal business hours.                           beverages.                                            waste.
                                                                                                        These final supplementary rules                      • Supplementary rule number four
                                             SUPPLEMENTARY INFORMATION:
                                                                                                     implement certain decisions from the                  prohibits the operation of any device
                                             I. Background                                           Guffey Gorge Management Plan on                       producing amplified sound, such as
                                                Guffey Gorge is an 80 acre tract of                  lands administered by the Royal Gorge                 stereos, speakers, and public address
                                             public land in Park County, Colorado. It                Field Office. The planning area consists              systems. This supplementary rule will
                                             is surrounded by private land with Park                 of approximately 80 acres of public                   help restore opportunities for quiet
                                             County Road 102 providing legal public                  lands within Park County, Colorado, in                recreational activities recognized as one
                                             access. Until ten years ago, recreational               the following described townships:                    of Guffey Gorge’s attributes.
                                             use of this area was light, and the area                                                                      III. Procedural Matters
                                                                                                     Park County, Colorado, Sixth Principal
                                             was used primarily by local residents                   Meridian
                                             for picnicking, hiking, and swimming.                                                                         Executive Order 12866, Regulatory
                                             Recreational use of the area has                        T. 15 S., R. 71 W,                                    Planning and Review
                                                                                                       Section 4: SE1⁄4SE1⁄4 Section 9: NE1⁄4NE1⁄4
                                             increased significantly over the past five                                                                       These supplementary rules are not
                                             years, resulting in resource damage, user                  These final supplementary rules are                significant regulatory actions and not
                                             conflicts, and safety hazards for visitors              needed to address significant public                  subject to review by the Office of
                                             and surrounding private landowners. In                  safety concerns and resource protection               Management and Budget under
                                             2013, the BLM began the public process                  issues resulting from increased and                   Executive Order 12866. These
                                             for developing a management plan for                    unsafe public use on public lands                     supplementary rules will not have an
                                             the 80 acre parcel to manage the                        known as Guffey Gorge. The authority                  annual effect of $100 million or more on
                                             increasing visitor use and associated                   for these supplementary rules is set                  the economy. They will not adversely
                                             issues. This process included                           forth at section 310 of the Federal Land              affect in a material way the economy;
                                             presentations and site tours with the                   Policy and Management Act (FLPMA),                    productivity; competition; jobs;
                                             Rocky Mountain (formerly Front Range)                   43 U.S.C. 1740, and 43 CFR 8365.1–6.                  environment; public health or safety; or
                                             Resource Advisory Council (RAC) and                     This notice, with a detailed map, will be             State, local or tribal governments or
                                             collaboration with stakeholders and                     posted at the Royal Gorge Field Office.               communities. These supplementary
                                             concerned citizens. On August 11, 2014,                    These final supplementary rules will               rules do not create a serious
                                             the BLM initiated a 30-day public                       help the BLM achieve management                       inconsistency or otherwise interfere
                                             scoping period. Based on feedback                       objectives for the area in the following              with an action taken or planned by
                                             received during this process, the BLM                   ways:                                                 another agency. These supplementary
                                             developed a proposed action and                            • Supplementary rule number one                    rules do not materially alter the
                                             released a preliminary Environmental                    prohibits possession and consumption                  budgetary effects of entitlements, grants,
                                             Assessment (EA) for a 30-day public                     of alcoholic beverages. As visitation at              user fees, or loan programs or the rights
                                             review on November 20, 2014. The BLM                    Guffey Gorge has increased, alcohol and               or obligations of their recipients; nor do
                                             incorporated comments into the Final                    drug use has also increased, leading to               they raise novel legal or policy issues.
                                             EA and corresponding Decision Record,                   public health and safety concerns. This               These supplementary rules merely
                                             signed on June 29, 2015.                                supplementary rule will help reduce                   establish rules of conduct for public use
                                                                                                     disruptive behavior associated with                   of a limited area of public lands.
                                             II. Discussion of Public Comments and                   alcohol use, improve public safety, and
                                             the Final Supplementary Rules                           reduce litter in the area.                            National Environmental Policy Act
                                               The proposed supplementary rules                         • Supplementary rule number two                      During the National Environmental
                                             were published in the Federal Register                  prohibits visitors from parking a motor               Policy Act (NEPA) review for the Guffey
                                             on June 1, 2016 (81 FR 35039). The BLM                  vehicle outside of designated parking                 Gorge Management Plan, the BLM fully
                                             received three letters with comments                    areas. Visitor parking is limited at                  analyzed the substance of these
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                                             during the 60-day comment period. One                   Guffey Gorge and frequently overflows                 supplementary rules in an EA, DOI–
                                             commenter supported a proposed fee;                     onto the shoulder of Park County Road                 BLM–CO–200–2013–040 EA. The BLM
                                             therefore, the comment was not relevant                 102. Park County Road 102 is a narrow,                signed the Decision Record for the EA
                                             to the proposed supplementary rules. A                  two-lane road with limited visibility                 on June 29, 2015, and found that these
                                             second commenter submitted a general                    near the Guffey Gorge trailhead.                      supplementary rules would not
                                             statement in support of controlling cars,               Restricting parking to designated                     constitute a major Federal action


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                                             60322        Federal Register / Vol. 82, No. 243 / Wednesday, December 20, 2017 / Rules and Regulations

                                             significantly affecting the quality of the              Unfunded Mandates Reform Act                          supplementary rules do not include
                                             human environment under Section                           These supplementary rules do not                    policies that have tribal implications,
                                             102(2)(C) of NEPA (42 U.S.C.                            impose an unfunded mandate on the                     and will have no bearing on trust lands
                                             4332(2)(C)). These supplementary rules                  private sector; or State, local, or tribal            or on lands for which title is held in fee
                                             merely establish rules of conduct for                   governments of more than $100 million                 status by Indian Tribes or U.S.
                                             public use of a limited area of public                  per year, nor will these supplementary                Government-owned lands managed by
                                             lands in order to protect natural                       rules have a significant or unique effect             the Bureau of Indian Affairs.
                                             resources and public health and safety.                 on State, local, or tribal governments or
                                             Although some activities will be                                                                              Information Quality Act
                                                                                                     the private sector. These supplementary
                                             prohibited in the area, the area will still             rules merely impose reasonable                           In developing these supplementary
                                             be open to other recreation uses. A                     restrictions on certain recreational                  rules, the BLM did not conduct or use
                                             detailed statement under NEPA is not                    activities on certain public lands to                 a study, experiment or survey requiring
                                             required. The BLM has placed the EA                     protect natural resources and the                     peer review under the Information
                                             and Finding of No Significant Impact on                 environment and human health and                      Quality Act (Section 515 of Pub. L. 106–
                                             file in the BLM Administrative Record                   safety. Therefore, the BLM is not                     554).
                                             at the address specified in the                         required to prepare a statement
                                             ADDRESSES section.                                      containing the information required by                Executive Order 13211, Actions
                                                                                                     the Unfunded Mandates Reform Act (2                   Concerning Regulations That
                                             Regulatory Flexibility Act                              U.S.C. 1531 et seq.).                                 Significantly Affect Energy Supply,
                                                Congress enacted the Regulatory                      Executive Order 12630, Governmental                   Distribution, or Use
                                             Flexibility Act of 1980 (RFA), as                       Actions and Interference With                           These supplementary rules do not
                                             amended, 5 U.S.C. 601–612, to ensure                    Constitutionally Protected Property                   constitute a significant energy action.
                                             that government regulations do not                      Rights (Takings)
                                                                                                                                                           These supplementary rules will not
                                             unnecessarily or disproportionately                        These supplementary rules do not                   have an adverse effect on energy supply,
                                             burden small entities. The RFA requires                 constitute a government action capable                production, or consumption and have
                                             a regulatory flexibility analysis if a rule             of interfering with constitutionally                  no connection with energy policy.
                                             would have a significant economic                       protected property rights. These
                                             impact, either detrimental or beneficial,               supplementary rules will not address                  Executive Order 13352, Facilitation of
                                             on a substantial number of small                        property rights in any form, and will not             Cooperative Conservation
                                             entities. These supplementary rules will                cause the impairment of constitutionally
                                             have no effect on business entities of                  protected property rights. Therefore, the               In accordance with Executive Order
                                             any size. These supplementary rules                     BLM has determined that these                         13352, the BLM has determined that
                                             merely impose reasonable restrictions                   supplementary rules will not cause a                  these supplementary rules will not
                                             on certain recreational activities on                   ‘‘taking’’ of private property or require             impede facilitating cooperative
                                             certain public lands to protect natural                 further discussion of takings                         conservation; will take appropriate
                                             resources and the environment and                       implications under this Executive                     account of and consider the interests of
                                             human health and safety. Therefore, the                 Order.                                                persons with ownership or other legally
                                             BLM has determined under the RFA                                                                              recognized interests in land or other
                                                                                                     Executive Order 13132, Federalism                     natural resources; will properly
                                             that these supplementary rules will not
                                             have a significant economic impact on                     These supplementary rules will not                  accommodate local participation in the
                                             a substantial number of small entities.                 have a substantial direct effect on the               Federal decision-making process; and
                                                                                                     states, on the relationship between the               will provide that the programs, projects,
                                             Small Business Regulatory Enforcement                   national government and the states, or                and activities are consistent with
                                             Fairness Act                                            on the distribution of power and                      protecting public health and safety.
                                                                                                     responsibilities among the various
                                               These supplementary rules are not a                                                                         Paperwork Reduction Act
                                                                                                     levels of government. Therefore, in
                                             ‘‘major rule’’ as defined at 5 U.S.C.
                                                                                                     accordance with Executive Order 13132,
                                             804(2). These supplementary rules                                                                               These supplementary rules do not
                                                                                                     the BLM has determined that these
                                             merely impose reasonable restrictions                                                                         contain information collection
                                                                                                     supplementary rules will not have
                                             on certain recreational activities on                                                                         requirements that the Office of
                                                                                                     sufficient Federalism implications to
                                             certain public lands to protect natural                                                                       Management and Budget must approve
                                                                                                     warrant preparation of a Federalism
                                             resources and the environment and                                                                             under the Paperwork Reduction Act of
                                                                                                     Assessment.
                                             human health and safety. These                                                                                1995, 44 U.S.C. 3501–3521.
                                             supplementary rules will not:                           Executive Order 12988, Civil Justice
                                                                                                     Reform                                                Author
                                               (1) Have an annual effect on the
                                             economy of $100 million or more;                          Under Executive Order 12988, the                      The principal author of these final
                                               (2) Cause a major increase in costs or                BLM Colorado State Director has                       supplementary rules is Linda Skinner,
                                             prices for consumers; individual                        determined that these supplementary                   Outdoor Recreation Planner, BLM,
                                             industries; Federal, State, or local                    rules will not unduly burden the                      Royal Gorge Field Office.
                                             agencies; or geographic regions; or                     judicial system, and that they meet the
                                                                                                     requirements of Sections 3(a) and 3(b)                  For the reasons stated in the
                                               (3) Have significant adverse effects on                                                                     preamble, and under the authorities for
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                                                                                                     (2) of the Order.
                                             competition, employment, investment,                                                                          supplementary rules found at 43 U.S.C.
                                             productivity, or innovation; or on the                  Executive Order 13175, Consultation                   1740 and 43 CFR 8365.1–6, the BLM
                                             ability of United States-based                          and Coordination With Indian Tribal                   Colorado State Director establishes
                                             enterprises to compete with foreign-                    Governments                                           supplementary rules for approximately
                                             based enterprises in domestic and                         In accordance with Executive Order                  80 acres of public lands in Guffey Gorge,
                                             export markets.                                         13175, the BLM has found that these                   to read as follows:


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                                                          Federal Register / Vol. 82, No. 243 / Wednesday, December 20, 2017 / Rules and Regulations                                        60323

                                             Final Supplementary Rules for Guffey                    SUMMARY:    FMCSA grants a limited 90-                  The Administrator of FMCSA has
                                             Gorge                                                   day waiver from the Federal hours-of-                 been delegated authority under 49 CFR
                                             Prohibited Acts                                         service (HOS) regulations pertaining to               1.87(e) to carry out the functions vested
                                                                                                     electronic logging devices (ELDs) for the             in the Secretary by 49 U.S.C. chapter
                                                Unless otherwise authorized, the                     transportation of agricultural                        311, subchapters I and III, relating to
                                             following acts are prohibited on all                    commodities as defined in the Federal                 commercial motor vehicle programs and
                                             public lands, roads, trails, and                        Motor Carrier Safety Regulations                      safety regulation.
                                             waterways administered by the BLM                       (FMCSRs). The Agency takes this action
                                             within the Guffey Gorge Management                                                                            Background
                                                                                                     in response to a waiver request from the
                                             Area:                                                   National Pork Producers Council                          The FMCSA received an application
                                                1. You must not possess or consume                   (NPPC) on behalf of eight organizations               for an exemption and waiver from the
                                             alcoholic beverages;                                    representing transporters of livestock                NPPC on behalf of eight organizations
                                                2. You must not park a motor vehicle                 and other agricultural commodities, as                that represent transporters of livestock
                                             outside of designated parking areas;                    defined in the FMCSRs. The Agency has                 and other agricultural commodities.
                                                3. You must not bring an animal into                 determined that the waiver is in the                  Notice of the request for exemption from
                                             the area, unless the animal is on a leash               public interest and would likely achieve              the requirement that a motor carrier
                                             not longer than six feet and secured to                 a level of safety that is equivalent to, or           require each of its drivers to use an
                                             a fixed object or under control of a                    greater than, the level that would be                 electronic logging device (ELD) no later
                                             person, or is otherwise physically                      achieved absent such exemption, based                 than December 18, 2017, to record the
                                             restricted at all times; and                            on the terms and conditions imposed.                  driver’s hours-of-service (HOS), was
                                                4. You must not operate any device                   The waiver will also through notice and               published in the Federal Register on
                                             producing amplified sound such as a                     public comment, provide FMCSA with                    October 31, 2017 (82 FR 50358).
                                             stereo, speaker, public address system,                 time to consider certain exemption                    Comments to that document were due
                                             or other similar device.                                applications from segments of the                     by November 30, 2017
                                                                                                     agricultural industry concerning the use              (www.regulations.gov, Docket FMCSA–
                                             Exemptions                                                                                                    2017–0297).
                                                                                                     of ELDs to document drivers’ hours of
                                                The following persons are exempt                     service and clarify applicability of the                 The NPPC focused on the impact of
                                             from these supplementary rules: Any                     requirements and the need for certain                 the ELD requirement on its members,
                                             Federal, State, local and/or military                   carriers to begin using ELDs by the                   given unique aspects of its industry,
                                             persons acting within the scope of their                December 18, 2017, deadline.                          including ‘‘exposed incompatibilities
                                             duties; members of any organized rescue                 DATES: This waiver is applicable
                                                                                                                                                           between the HOS rules and the . . .
                                             or fire-fighting force in performance of                beginning December 18, 2017, and                      industry . . . causing disruption . . .
                                             an official duty; or individuals expressly              expires on March 18, 2018.                            and endangering the health and welfare
                                             authorized by the BLM.                                                                                        of . . . animals transported . . .’’
                                                                                                     FOR FURTHER INFORMATION CONTACT:
                                                                                                                                                              FMCSA has also received from the
                                             Enforcement                                             Thomas L. Yager, Chief, Driver and                    Agricultural Retailers Association
                                                                                                     Carrier Operations Division, Office of                (ARA) an exemption, waiver, and
                                               Any person who violates any of these
                                                                                                     Bus and Truck Standards and                           petition document dated October 25,
                                             supplementary rules may be tried before
                                                                                                     Operations, Federal Motor Carrier Safety              2017, requesting that transporters of
                                             a United States Magistrate and fined in
                                                                                                     Administration, 1200 New Jersey Ave.                  agricultural commodities and farm
                                             accordance with 18 U.S.C. 3571,
                                                                                                     SE, Washington, DC 20590. Email:                      supplies not be required to use ELDs
                                             imprisoned no more than 12 months
                                                                                                     MCPSD@dot.gov. Phone: (614) 942–                      during an exemption period. That
                                             under 43 U.S.C. 1733(a) and 43 CFR
                                                                                                     6477.                                                 exemption request has not yet been
                                             8360.0–7, or both. In accordance with
                                             43 CFR 8365.1–7, State or local officials               SUPPLEMENTARY INFORMATION:                            published for comment. While this
                                             may also impose penalties for violations                Legal Basis                                           waiver is issued in response to the
                                             of Colorado law.                                                                                              application submitted by the NPPC, it
                                                                                                        The Transportation Equity Act for the              also applies to other eligible motor
                                             Gregory P. Shoop,                                       21st Century (TEA–21) (Pub. L. 105–                   carriers, including ARA members, to the
                                             Acting BLM Colorado State Director.                     178, 112 Stat. 107, June 9, 1998)                     extent they are handling agricultural
                                             [FR Doc. 2017–27413 Filed 12–19–17; 8:45 am]            provides the Secretary of Transportation              commodities as defined under 49 CFR
                                             BILLING CODE 4310–JB–P                                  (the Secretary) the authority to grant                395.2, as discussed in the Terms and
                                                                                                     waivers from any of the FMCSRs issued                 Conditions of the Waiver section below.
                                                                                                     under Chapter 313 of Title 49 of the                     In addition to NPPC’s request,
                                                                                                     United States Code or 49 U.S.C. 31136,                FMCSA received numerous inquiries
                                             DEPARTMENT OF TRANSPORTATION                            to a person(s) seeking regulatory relief.             from parties involved in the transport of
                                                                                                     (49 U.S.C. 31136(e), 31315(a)). The                   agricultural commodities about the
                                             Federal Motor Carrier Safety                            Secretary must make a determination                   correct application of the HOS
                                             Administration                                          that the waiver is in the public interest,            agricultural exception in 49 CFR
                                                                                                     and that it is likely to achieve a level of           395.1(k)(1), leading to an ongoing
                                             49 CFR Part 395                                         safety that is equivalent to, or greater              review of the exception. FMCSA is
                                                                                                     than, the level of safety that would be               considering providing new guidance on
                                             Hours of Service; Electronic Logging                    obtained in the absence of the waiver.                the agricultural exception in the near
                                             Devices; Limited 90-Day Waiver for the                  Individual waivers may be granted only
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                                                                                                                                                           future.
                                             Transportation of Agricultural                          for a specific unique, non-emergency
                                             Commodities                                             event, for a period up to three months.               Safety Determination
                                             AGENCY: Federal Motor Carrier Safety                    TEA–21 authorizes the Secretary to                       In an October 6, 2010, Federal
                                             Administration (FMCSA), DOT.                            grant waivers without requesting public               Register document (75 FR 61626),
                                                                                                     comment, and without providing public                 FMCSA granted a limited 90-day waiver
                                             ACTION: Notification; grant of waiver.
                                                                                                     notice.                                               from the HOS requirements for the


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Document Created: 2018-10-25 10:55:22
Document Modified: 2018-10-25 10:55:22
CategoryRegulatory Information
CollectionFederal Register
sudoc ClassAE 2.7:
GS 4.107:
AE 2.106:
PublisherOffice of the Federal Register, National Archives and Records Administration
SectionRules and Regulations
ActionFinal supplementary rules.
DatesThese supplementary rules are effective January 19, 2018.
ContactLinda Skinner, Outdoor Recreation
FR Citation82 FR 60320 

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