Rule2025-15703
Migratory Bird Hunting; Final 2025-26 Frameworks for Migratory Bird Hunting Regulations
Primary source
Metadata and text below are from the Federal Register, a public-domain U.S. government work. Always verify the official published version before relying on it for any legal matter.
Published
August 18, 2025
Effective
August 18, 2025
Issuing agencies
Interior DepartmentFish and Wildlife Service
Abstract
The U.S. Fish and Wildlife Service (Service or we) is establishing the final frameworks from which States may select season dates, limits, and other options for the 2025-26 migratory game bird hunting season. We annually prescribe limits (which we call frameworks) within which States may select hunting seasons. Frameworks specify the outside dates, season lengths, shooting hours, bag and possession limits, and areas where migratory game bird hunting may occur. These frameworks are necessary to allow State selections of seasons and limits and to allow harvest at levels compatible with migratory game bird population status and habitat conditions. Migratory game bird hunting seasons provide opportunities for recreation and sustenance, and aid Federal, State, and Tribal governments in the management of migratory game birds.
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[Federal Register Volume 90, Number 157 (Monday, August 18, 2025)]
[Rules and Regulations]
[Pages 40178-40218]
From the Federal Register Online via the Government Publishing Office [<a href="http://www.gpo.gov">www.gpo.gov</a>]
[FR Doc No: 2025-15703]
[[Page 40177]]
Vol. 90
Monday,
No. 157
August 18, 2025
Part III
Department of the Interior
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Fish and Wildlife Service
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50 CFR Part 20
Migratory Bird Hunting; Final 2025-26 Frameworks for Migratory Bird
Hunting Regulations; Final Rule
Federal Register / Vol. 90 , No. 157 / Monday, August 18, 2025 /
Rules and Regulations
[[Page 40178]]
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DEPARTMENT OF THE INTERIOR
Fish and Wildlife Service
50 CFR Part 20
[Docket No. FWS-HQ-MB-2024-0127; FXMB1231099BPP0-256-FF09M32000]
RIN 1018-BH65
Migratory Bird Hunting; Final 2025-26 Frameworks for Migratory
Bird Hunting Regulations
AGENCY: Fish and Wildlife Service, Interior.
ACTION: Final rule.
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SUMMARY: The U.S. Fish and Wildlife Service (Service or we) is
establishing the final frameworks from which States may select season
dates, limits, and other options for the 2025-26 migratory game bird
hunting season. We annually prescribe limits (which we call frameworks)
within which States may select hunting seasons. Frameworks specify the
outside dates, season lengths, shooting hours, bag and possession
limits, and areas where migratory game bird hunting may occur. These
frameworks are necessary to allow State selections of seasons and
limits and to allow harvest at levels compatible with migratory game
bird population status and habitat conditions. Migratory game bird
hunting seasons provide opportunities for recreation and sustenance,
and aid Federal, State, and Tribal governments in the management of
migratory game birds.
DATES: This rule takes effect on August 18, 2025.
ADDRESSES: States should send their season selections to: Chief,
Division of Migratory Bird Management, U.S. Fish and Wildlife Service,
MS: MB, 5275 Leesburg Pike, Falls Church, VA 22041-3803. You may
inspect comments received on the migratory bird hunting regulations at
<a href="https://www.regulations.gov">https://www.regulations.gov</a> at Docket No. FWS-HQ-MB-2024-0127. You may
obtain copies of referenced reports from the street address above, or
from the Division of Migratory Bird Management's website at <a href="https://www.fws.gov/program/migratory-birds">https://www.fws.gov/program/migratory-birds</a>, or at <a href="https://www.regulations.gov">https://www.regulations.gov</a>
at Docket No. FWS-HQ-MB-2024-0127.
FOR FURTHER INFORMATION CONTACT: Jerome Ford, U.S. Fish and Wildlife
Service, Department of the Interior, (703) 358-2606. Individuals in the
United States who are deaf, deafblind, hard of hearing, or have a
speech disability may dial 711 (TTY, TDD, or TeleBraille) to access
telecommunications relay services. Individuals outside the United
States should use the relay services offered within their country to
make international calls to the point-of-contact in the United States.
SUPPLEMENTARY INFORMATION:
Process for Establishing Annual Migratory Game Bird Hunting Regulations
The process for promulgating annual regulations for the hunting of
migratory game birds involves the publication of a series of proposed
and final rulemaking documents. We provided a detailed overview of the
current process in the August 3, 2017, Federal Register (82 FR 36308).
This final rule is the third in a series of proposed and final rules
that establish regulations for the 2025-26 migratory game bird hunting
season in title 50 of the Code of Federal Regulations (CFR).
On January 21, 2025, we published in the Federal Register (90 FR
7056) a proposal to amend 50 CFR part 20. The proposal provided a
background and overview of the migratory bird hunting regulations
process, and addressed the establishment of seasons, limits, and other
regulations for hunting migratory game birds under Sec. Sec. 20.101
through 20.107, 20.109, and 20.110 of subpart K. Major steps in the
regulations development process for the 2025-26 hunting season relating
to open public meetings and Federal Register notifications were
illustrated in the diagram at the end of the January 21, 2025, proposed
rule.
Further, in the January 21, 2025, proposed rule (90 FR 7056) we
explained that sections of subsequent documents outlining hunting
frameworks and guidelines would be organized under numbered headings,
which were set forth in that proposed rule. This document refers only
to numbered items requiring attention and omits those items not
requiring attention. Therefore, the numbered items are discontinuous,
and the list appears incomplete.
The January 21, 2025, proposed rule provided detailed information
on the proposed 2025-26 regulatory schedule. We provided the meeting
dates and locations for the Service's Migratory Bird Regulations
Committee (SRC) on our website at <a href="https://www.fws.gov/event/us-fish-and-wildlife-service-migratory-bird-regulations-committee-meeting">https://www.fws.gov/event/us-fish-and-wildlife-service-migratory-bird-regulations-committee-meeting</a> and
Flyway Council meetings on Flyway calendars posted on our website at
<a href="https://www.fws.gov/partner/migratory-bird-program-administrative-flyways">https://www.fws.gov/partner/migratory-bird-program-administrative-flyways</a>. The SRC conducted an open meeting with the Flyway Council
Consultants on May 17, 2024, to discuss preliminary issues for the
2025-26 regulations, and on November 19, 2024, to review information on
the current status of migratory game birds and develop recommendations
for the 2025-26 regulations for these species.
On April 24, 2025, we published in the Federal Register (90 FR
17300) the proposed regulatory frameworks for the 2025-26 migratory
game bird hunting season. We have considered all pertinent comments
received, which includes comments submitted in response to our January
21, 2025, and April 24, 2025, proposed rulemaking documents and
comments from the May and November SRC meetings. This document
establishes final regulatory frameworks for the 2025-26 migratory game
bird hunting season and includes no substantive changes from the April
24, 2025, proposed rule. We will publish State season selections in the
Federal Register as amendments to Sec. Sec. 20.101 through 20.107 and
20.109 of title 50 CFR part 20.
Population Status and Harvest
Each year, we publish reports that provide detailed information on
the status and harvest of certain migratory game bird species and
details of our adaptive harvest management decision framework
assessments. These reports contain descriptions of species population
segments referenced in status assessments. These reports are available
at the address indicated under FOR FURTHER INFORMATION CONTACT or from
our website at <a href="https://www.fws.gov/library/collections/population-status">https://www.fws.gov/library/collections/population-status</a>, <a href="https://www.fws.gov/library/collections/migratory-bird-hunting-activity-and-harvest-reports">https://www.fws.gov/library/collections/migratory-bird-hunting-activity-and-harvest-reports</a>, and <a href="https://www.fws.gov/project/adaptive-harvest-management">https://www.fws.gov/project/adaptive-harvest-management</a>.
We used the following annual reports published in August 2024 in
the development of these regulatory frameworks for the migratory bird
hunting season. These reports can be found on our website at the above
hyperlinks.
<bullet> Adaptive Harvest Management, 2025 Hunting Season;
<bullet> American Woodcock Population Status, 2024;
<bullet> Band-tailed Pigeon Population Status, 2024;
<bullet> Migratory Bird Hunting Activity and Harvest During the
2022-23 and 2023-24 Hunting Seasons;
<bullet> Mourning Dove Population Status, 2024;
<bullet> Status and Harvests of Sandhill Cranes, Mid-continent,
Rocky Mountain, Lower Colorado River Valley and Eastern Populations,
2024; and
[[Page 40179]]
<bullet> Waterfowl Population Status, 2024.
Our long-term objectives continue to include providing
opportunities to harvest portions of certain migratory game bird
populations and to limit harvests to levels compatible with each
population's ability to maintain healthy, viable numbers. Migratory
game bird hunting seasons provide opportunities for recreation and
sustenance, and aid Federal, State, and Tribal governments in the
management of migratory game birds. Having taken into account the zones
of temperature and the distribution, abundance, economic value,
breeding habits, and times and lines of flight of migratory birds, we
conclude that the final hunting seasons provided for herein are
compatible with the current status of migratory bird populations and
long-term population goals. Additionally, we are obligated to, and do,
give serious consideration to all information received during the
public comment period.
Summary of Public Comments and Response
The preliminary proposed rulemaking, which appeared in the January
21, 2025, Federal Register, opened the public comment period for
migratory game bird hunting regulations for the 2025-26 hunting season.
We subsequently published in the Federal Register the proposed
regulatory frameworks (Federal limits) for the 2025-26 migratory game
bird hunting season on April 24, 2025, which also included a request
for public comments. We indicated in both rulemaking documents that we
would summarize the comments received and publish responses to all
pertinent written comments when we developed these final frameworks for
the 2025-26 season.
We received a total of 56 unique (plus 3 duplicate and 2 unrelated
to the proposed rule) written comments from individuals and
organizations on the proposed rules, which contained 101 individual
substantive comments. We received 16 comments providing general support
for all or some of the provisions of this rulemaking. Due to the number
of comments, this summary presents major themes (issues) occurring
throughout the comments. We grouped and discussed comments of a similar
nature under the issue headings identified below. Although we
considered several comments to be outside the scope of this rulemaking,
we summarize these and respond for completeness unless the comment
scope was outside of migratory game bird hunting in the United States.
In addition, we considered and incorporated, as appropriate, into the
final rule all relevant information obtained through the public comment
periods.
Hunting and the Regulation Development Process in General
Issue: Opposed to the killing of migratory game birds, and distrust
in the data on which the migratory bird hunting regulations are based
and the hunting regulations development process.
Response: As we indicated above under Population Status and
Harvest, our long-term objectives continue to include providing
opportunities to harvest portions of certain migratory game bird
populations and to limit harvests to levels compatible with each
population's ability to maintain healthy, viable numbers. Sustaining
migratory bird populations and ensuring a variety of sustainable uses,
including harvest, is consistent with the guiding principles by which
migratory birds are to be managed under the conventions between the
United States and several foreign nations for the protection and
management of these birds. The conventions form the basis of the
Migratory Bird Treaty Act (MBTA, 16 U.S.C. 703-12). We have taken into
account available information and considered the public comments, and
we continue to conclude that the hunting seasons provided for herein
are compatible with the current status of migratory bird populations
and long-term population goals.
The data we use to evaluate migratory game bird status are based on
an extensive portfolio of State and Federal cooperative monitoring
programs. These monitoring programs involve species-specific surveys
based on statistical designs that allow for defensible and unbiased
inference to the migratory bird populations of interest. We also
consider any other applicable information that may be available from
other monitoring programs including climate data and remote sensing
data to evaluate habitat conditions. We continuously work with our
partners and university academicians to review our monitoring programs
and improve survey reliability and efficiency. Most all our monitoring
programs have undergone multiple reviews, and we have made changes to
our surveys as appropriate to account for new information and
developing technologies. Above, under Population Status and Harvest, we
have identified reports that provide detailed information on our
cooperative monitoring programs and the status and harvest of certain
migratory game bird species. As always, we continue to seek new
information and improve the reliability and efficiency of our
monitoring programs.
Regarding the regulations process, the Flyway Council system of
migratory bird management has been a longstanding example of successful
State-Federal cooperative management since its establishment in 1952.
The Service and States have similar legal mandates for migratory bird
conservation. Thus, the Service and States collaborate through the
Flyway Council system to most effectively achieve mutual objectives for
migratory bird conservation including the development of cooperative
migratory bird population and habitat monitoring programs and in
regulation development. The regulations development process is open to
public observation and review. However, as always, we continue to seek
new ways to streamline and improve the process and ensure adequate
conservation of migratory birds.
Specifically, the Service's Migratory Bird Regulations Committee
(SRC) is responsible for considering recommendations from the Service
and Flyway Councils and recommending changes to decision frameworks and
Federal limits for migratory game bird hunting. The SRC recommendations
are provided to the Service Director and are subsequently considered by
the Assistant Secretary for Fish and Wildlife and Parks acting on
behalf of the Secretary of the Department of the Interior. Those
recommendations are published in the Federal Register for public
comment. Consistent with Federal regulations at 50 CFR 20.153-20.155,
SRC meetings may be attended by any person outside the Department of
the Interior. Notices of these meetings are published on the Service's
Migratory Bird Program website at least 2 weeks before the meeting.
These meetings are open to the public for observation, and the public
may submit written comments to the Service's Migratory Bird Program.
Minutes of the proceedings are maintained for each meeting of the SRC
for which notice is published. A public file is established for each
rulemaking containing written comments and other significant written
and oral communications which occur after the notice of proposed
rulemaking. The public file includes copies of or references to any
other significant data or information.
Additionally, notice of each Flyway Council meeting to be attended
by any Department of the Interior official is announced on the
Service's Migratory Bird Program website at least 2 weeks
[[Page 40180]]
before the meeting or as soon as practicable after the Department of
the Interior learns of the meeting. The notices state the time, place,
and general subject(s) of the meeting.
Federal Limits for Duck Hunting
Issue: Based on personal observations of current duck population
and habitat status, the recommended duck hunting season lengths and
female mallard restrictions from the adaptive harvest management (AHM)
decision frameworks appear too liberal.
Response: In our January 21, 2025, preliminary rule, we state that
we will continue to use AHM to make informed and objective decisions
about appropriate duck-hunting regulations (90 FR 7056 at 7061). AHM is
a tool that permits sound resource decisions in the face of uncertain
regulatory impacts and provides a mechanism for reducing that
uncertainty over time. We use an AHM decision framework to evaluate
four regulatory alternatives, each with a different expected harvest
level, and choose the optimal regulation for duck hunting based on the
status and demographics of specific populations of ducks, including
those of special concern. By annually comparing predicted vs. observed
abundance and harvest, we update model weights and parameters and
incorporate this new information to improve our understanding of the
dynamics of managed populations. The process is optimal in that each
year it provides the regulatory choice necessary to maximize management
performance. It is also adaptive in that the decision framework evolves
to account for new information.
All the AHM decision frameworks used to determine appropriate duck
hunting regulations have been peer reviewed, vetted through the Service
and Flyway Councils via their collaborative Harvest Management Working
Group, and published in the Federal Register as proposed and final
rulemakings. These rulemakings involved a public comment period (see,
for example, the recently adopted AHM decision framework to guide
pintail harvest management decisions in our April 24, 2025, proposed
rule). We have already addressed any comments we received when these
were developed and proposed for use. We continue to review these
decision frameworks and look for ways to improve them in collaboration
with the Flyway Councils. However, since adoption of each specific
decision framework, we have not received any comments that have
identified a flaw in the technical underpinnings. The benefit of AHM is
that we can continue to make defensible informed and objective
decisions in the face of bird demographic uncertainty with a process
that enables learning while doing. We have specified our management
objectives, predictive models, measures of model weights, model
parameter estimates with credibility intervals, and the set of
regulatory alternatives for each AHM decision framework.
Female-specific duck bag limits currently only exist for mallards
where hunters may generally discern males and females by plumage
characteristics during most of the hunting season. Female mallard
restrictions have existed in Federal regulations since at least the
1970s (see, for example, the migratory game bird hunting regulations
for the 1976-77 hunting season published in the Federal Register on
September 7, 1976, 41 FR 37582). However, there are no data that
indicates the necessity or benefit of these restrictions in increasing
survival or reproduction rates at the population level for mallards or
in comparison to other duck populations without sex-specific
regulations. Though it might seem counterintuitive, research and
scientific modeling in development of the pintail harvest strategy show
that restricting the harvest of female pintails would not meaningfully
affect the subsequent breeding population. Furthermore, an underlying
objective of hunting regulations is to minimize their complexity and
ensure that hunters can reasonably comply with them. Sex-specific duck
bag limits complicate hunting regulations and places a burden on
hunters that may have difficulty identifying gender for some species of
ducks in certain hunting situations. However, hunters may use voluntary
restraint in choosing duck species and genders to harvest within
overall duck bag limits.
Clarity of AHM Decision Criteria
Issue: The proposed framework mentions selecting ``the optimal
regulation'' based on terms such as ``maximum long-term sustainable
harvest'' and ``98 percent of maximum sustainable harvest,'' but it
does not provide explicit thresholds, methodologies, or weightings that
underlie these AHM decisions.
Response: We understand the concern and will make every effort to
better reference the reports for this additional information that is
too great in volume to provide in the rulemaking documents. In the
proposed and final framework rules, we list the annual reports in the
development of these regulatory frameworks for the migratory bird
hunting season (see above under Population Status and Harvest). One of
the referenced reports is the Adaptive Harvest Management, 2025 Hunting
Season (<a href="https://www.fws.gov/media/adaptive-harvest-management-2025-hunting-season">https://www.fws.gov/media/adaptive-harvest-management-2025-hunting-season</a>). This report contains a detailed accounting of the
objectives, assessments, model weights and parameters, and resultant
optimal harvest management policies. These optimal policies are then
used with current bird abundance and habitat information to make
informed and objective decisions. Review of the supporting AHM report
should make clear the current optimal harvest management policies and
state of the resource information that we used to arrive at decisions
for the season frameworks for the upcoming duck hunting season.
State-Specific Hunting Seasons
Issue: Individual preference for more restrictive season length and
bag limit or specific dates for the duck season in a State where they
hunt based on local experience and observations.
Response: The Service annually develops migratory game bird hunting
regulations by establishing the frameworks, or limits, for season
dates, season lengths, shooting hours, bag and possession limits, and
areas where migratory game bird hunting may occur. These frameworks are
necessary to allow harvest at levels compatible with migratory game
bird population status and habitat conditions. After the frameworks are
established, States may select migratory game bird hunting seasons
within the frameworks. States may always be more conservative in their
selections than the frameworks, but never more liberal. The annual
process of developing migratory game bird hunting regulations concludes
when we establish the State season selections as Federal regulations
under 50 CFR part 20, subpart K.
States have their own process for determining their season
selections provided to the Service for publication as a Federal
regulation and for promulgating their own migratory game bird hunting
regulations. States undoubtedly make every effort to consider the
timing and distribution of migratory game bird abundance in their State
and to consider the varied preferences of their constituents to provide
the greatest hunting opportunity and experience. Those wishing to
provide input on State-specific migratory game bird management and
hunting regulations are encouraged to contact their State wildlife
agency to learn more about the opportunities for public input.
[[Page 40181]]
Lastly, we note that the Federal limits are based on an assessment
of available demographic and habitat data at the migratory game bird
population level. The timing of bird migration and distribution across
State and local areas can vary widely depending on a number of factors
including weather patterns, water distribution, temperature, habitat
availability, hunting pressure, and a number of other factors outside
of our control. These factors can have a substantial influence on the
number of birds that hunters may see during an outing and the quality
of the hunting experience.
Youth and Veterans--Active Military Waterfowl Hunting Days
Issue: Women should be allowed to hunt during these special
waterfowl hunting days to increase female participation in hunting.
Response: Females are currently allowed to hunt during the special
youth and veterans--active military waterfowl hunting days, so long as
they meet the other qualifications for group membership and may be a
non-hunting participant. The Service established special youth hunting
days in 1996 (61 FR 49232 at 49234, September 18, 1996). The stated
purpose was to introduce youth to the concepts of ethical utilization
and stewardship of waterfowl and other natural resources, encourage
youngsters and adults to experience the outdoors together, and
contribute toward the long-term conservation of the migratory bird
resource (61 FR 30490 at 30491, June 14, 1996). The Service's intent
was not to recruit youth hunters, but to provide the best and safest
learning environment for our youth who are interested in hunting (61 FR
49232, September 18, 1996; and 63 FR 38707, July 17, 1998).
The John D. Dingell, Jr. Conservation, Management, and Recreation
Act (Act), signed into law on March 12, 2019 (Pub. L. 116-9), amended
the MBTA to codify the Service's existing 2 youth waterfowl hunting
days and 2 additional hunting days for veterans and active military
personnel. Thus, as directed by Congress in the Act, we have adopted
the inclusion of the 2 additional days for veterans and active military
personnel into the frameworks since the 2019-20 hunting season. The
purpose of the special waterfowl hunting days for veterans and active
military personnel is not explicit in the Act but is assumably to honor
these individuals rather than recruit a specific group of hunters.
Many States have programs to increase the recruitment, retention,
and reactivation (R3) of participants in hunting and shooting sports.
States could designate any of their regular duck season days as open to
only a certain group of hunters for the benefit of their R3 efforts.
However, we note that any hunting days that exclude certain hunters
reduces opportunity for those individuals, particularly when the
Federal frameworks already allow a general duck season length of 107
days, the maximum allowed by the MBTA for any species.
Economic Analysis for Migratory Game Bird Hunting
Issue: Economics is driving the regulatory decisions rather than
biology, the data used (2011 and 2016 National Survey of Fishing,
Hunting, and Wildlife-Associated Recreation) are outdated. The many
other values (culture and tradition, social, environmental connection,
conservation support) of migratory game bird hunting should be
addressed.
Response: The Service establishes annual regulations governing
migratory game bird hunting based entirely on current biological data,
our legal mandate under the MBTA for long-term sustainability, and our
objectives for providing hunting opportunities. The annual regulations
include open seasons, daily bag and possession limits, shooting hours,
areas where hunting may occur, and other restrictions. These annual
regulations ensure that harvest occurs at levels compatible with
migratory game bird population demographics, including production and
survival, which vary in space and time with habitat conditions.
Our long-term objectives continue to include providing
opportunities to harvest portions of certain migratory game bird
populations and to limit harvests to levels compatible with each
population's ability to maintain healthy, viable numbers. The Service's
goals and objectives for migratory game bird harvest management are
specified in a 2013 supplemental environmental impact statement (78 FR
32686, May 31, 2013) and the March 13, 1987, proposed rule (52 FR
7900). Migratory game bird hunting seasons provide opportunities for
recreation and sustenance, and aid Federal, State, and Tribal
governments in the management of migratory game birds.
Annually, the Service conducts formal assessments of monitoring
data on migratory game bird status and harvest to determine the
biologically appropriate hunting regulations for the upcoming hunting
season and in consultation with the four Flyway Councils. We publish
reports that provide detailed information on the status and harvest of
certain migratory game bird species and the AHM assessments that
explicitly review the biological data, objectives for harvest
management, and the expected harvests and population level impacts
under each regulatory alternative we considered. We choose the optimal
regulation for duck hunting based on the status and demographics of
these birds and objectives for long-term conservation and harvest
opportunity.
The resultant economic effects that are generated by migratory bird
hunting are substantial, estimated at about $2.7 billion in associated
economic activity (see below under Required Determinations, Regulatory
Flexibility Act), and generate substantial resources for migratory bird
management and habitat conservation. However, the economic benefits
have no bearing on the selection of appropriate annual hunting
regulations. We conduct an economic analysis each year to comply with
Executive Order (E.O.) 12866 and the Regulatory Flexibility Act (5
U.S.C. 601 et seq.) to ensure that the annual hunting regulations
minimize negative economic impacts on small business entities, such as
restaurants, grocery stores, lodging, transportation, and sporting
goods stores. Opening the migratory game bird hunting season annually
generates economic activity for small businesses that would otherwise
not be possible.
Regarding the data used in the economic analysis, we used the data
most currently available. Due to rising costs, the 2022 Survey focused
on high-level, national data only and did not collect detailed
migratory bird hunter expenditure data as was done in previous surveys
completed about every 5 years (U.S. Department of Interior 2022).
Therefore, we used the 2016 Survey's migratory bird hunter expenditure
data inflation adjusted to 2024 dollars. We continue to search for
consistent, reliable, national expenditure data for migratory bird
hunters.
We agree that hunters derive benefits from hunting, including
harvesting game birds, being outdoors, and appreciating their
environment. We address these benefits within the consumer surplus
analysis conducted as part of our economic analysis. We also recognize
that all people may derive benefits from abundant, self-sustaining
migratory game bird populations and healthy habitats, and that support
for conservation depends on hunters and non-hunters alike. The
connection between people, abundant game birds, and healthy habitats is
the focus of the North American Waterfowl Management Plan. However, it
is beyond the scope of
[[Page 40182]]
our economic analysis for this rulemaking to evaluate how hunting
regulations affect income and support for conservation efforts. Hunting
regulations are developed based on objectives for abundant self-
sustaining game bird populations and harvest opportunity, and in
consideration of hunter preferences based on available human dimensions
information.
Two-Tier Hunting Regulations Pilot Study
Issue: Hunters may not be able to comply with bag limits with the
relaxation of hunter requirements to identify duck species, and these
regulations are not needed as data indicate active hunter numbers are
increasing or stable for many migratory game bird species.
Response: In 2020, we authorized a request from the Central Flyway
Council for a 4-year pilot study on a two-tier duck hunting regulatory
system in South Dakota and Nebraska. The intent of the two-tier
regulation study is to evaluate whether regulations that relax the
requirement for hunters to identify duck species can improve active
duck hunter participation, which is demonstrated to be declining in
most States. We anticipate minimal impacts from the pilot study to
species of special concern because the two-tier system applies only
under the liberal or moderate regulatory alternatives for the general
duck season and there is a reduced bag limit for the hunters
participating in the tier with relaxed requirements to identify duck
species. Also, hunters in South Dakota and Nebraska do not generally
harvest many duck species of special concern, and those species have
bag limits that are more restrictive than the general duck season bag
limit. We will not expand this two-tier regulatory system to other
States or migratory game bird species groups until completion of a
final report and evaluation of the pilot study, which includes analysis
of species of special concern. The pilot study report is due to the
Service by September 2025. Any proposed continuation or expansion of
the two-tier regulation study will be published in the Federal Register
to allow for public review and comment.
Zones and Split Season Guidelines for Ducks and Doves
Issue: Zones and split seasons increase hunting exposure days and
are not biologically sustainable.
Response: The Service has allowed the use of zones to provide
equitable distribution of duck and dove hunting opportunities within a
State or region since 1942 at the request of the Flyway Councils. In
1978 and 2011, we prepared environmental assessments on the use of
zones to set duck hunting regulations. The Service has been clear that
the intent is not to increase total annual harvest in the zoned areas;
harvest levels are to be adjusted downward if they exceed traditional
levels because of zoning. However, we acknowledge that use of zones and
splits may increase migratory game birds to more hunting exposure days,
and evaluating harvest and other impacts on migratory game bird
demographics may be exceedingly difficult to estimate without a
statistical study design.
In 1991, the Service developed guidelines to provide a framework
for controlling the proliferation of zones and split seasons in duck
and dove hunting. The guidelines identify a limited number of zone and
split-season configurations that could be used for duck and dove
hunting and restricted the frequency of changes in State selection
among these configurations to the beginning of 5-year intervals. The
guidelines were established in part to facilitate evaluation of the
biological impacts from use of zones and split seasons. Any negative
impacts to duck and dove population abundance from use of zones and
split seasons as allowed in our guidelines would be accounted for in
our annual process to monitor game bird population status and determine
appropriate hunting regulations to ensure long-term population
conservation and hunting opportunities, for example, the possibility of
establishing more frequent restrictive seasons.
In 2011 and 2021, when we last added additional zones and split-
seasons configurations at the request of the Flyway Councils, we
required States to conduct an evaluation of impacts to hunter dynamics
and harvest to evaluate the costs and benefits of additional
configurations. We look forward to receiving the evaluation reports by
September 2026 from States that selected the new zones and split-
seasons configuration that we added in 2020. In the January 21, 2025,
proposed rule (90 FR 7056), we proposed to adopt the same zones and
split-season guidelines and configurations for duck hunting as we used
for the 2021-25 seasons with no changes or expansion. We note that
long-term trends for applicable ducks and doves have been sustainable.
Basic Hunting Regulations
Issue: Basic hunting regulations are either too liberal (allowing
for the use of electronic spinning wing and other motion decoys,
baiting and allowance of intentionally flooded standing crops, and
captive mallard release) or restrictive (possession limits) and need
review considering current agricultural practices, hunting techniques,
and technologies.
Response: This rulemaking is specific to annual regulations for
migratory game bird hunting, which include open seasons, daily bag and
possession limits, shooting hours, areas where hunting may occur, and
other restrictions. These annual regulations ensure that harvest occurs
at levels compatible with migratory game bird population demographics,
including production and survival, which vary in space and time with
habitat conditions. We are not proposing any changes to the basic
hunting regulations governing the hunting of migratory birds, which
generally do not change based on the status of populations and
environmental conditions. Basic regulations include hunting methods.
We acknowledge that we have received an increasing number of
inquiries about basic hunting methods in light of advancing
technologies, for example, legality of air guns, electronic motion
decoys, and artificial baits, as well as comments on related issues
including wanton waste and termination of possession. We have been
working with the Department of Interior's Office of Law Enforcement to
consider the timing and scope of this undertaking. Any such rulemaking
effort will begin with an advance notice of proposed rulemaking
published in the Federal Register to solicit public input on the
issues.
National Environmental Policy Act (NEPA)
Issue: NEPA consideration was not adequate, particularly on habitat
degradation and broader ecosystem impacts.
Response: As we state below under Required Determinations, the
Service has complied with NEPA for this rulemaking via the programmatic
document, Second Final Supplemental Environmental Impact Statement:
Issuance of Annual Regulations Permitting the Sport Hunting of
Migratory Birds (2013 SEIS; EIS No. 20130139), filed with the
Environmental Protection Agency (EPA) on May 24, 2013. The 2013 SEIS
addresses NEPA compliance by the Service for issuance of the annual
framework regulations for hunting of migratory game bird species. We
published a notice of availability for the 2013 SEIS in the Federal
Register on May 31, 2013 (78 FR 32686) and our record of decision on
July 26, 2013 (78
[[Page 40183]]
FR 45376). We also address NEPA compliance for waterfowl hunting
frameworks through the annual preparation of separate environmental
assessments that tiers off the 2013 SEIS. The most recent of these
documents is the Duck Hunting Regulations for the 2024-25 Season and
corresponding 2024 finding of no significant impact, available at
<a href="https://www.regulations.gov">https://www.regulations.gov</a> at Docket No. FWS-HQ-MB-2023-0113. We note
that 2013 SEIS has an entire section on the affected environment (see
chapter 4, pp. 59-152) and environmental consequences (see chapter 6,
pp. 171-229) and provides public comments received during the open
comment period and the Service response (see chapter 7, pp. 231-244).
Possible New Hunting Regulations Process
Issue: The new process must continue to use migratory game bird
monitoring data and evaluation to inform appropriate Federal limits for
hunting, be no less responsive to the biological need for regulatory
changes, and allow for public comment.
Response: In the January 21, 2025, proposed rule (90 FR 7056), we
said we may propose a new approach of authorizing annual migratory bird
hunting seasons, and that this would be published as a new proposed
rule under RIN 1018-BI04 for public review and comment. All comments on
that proposed rule will be considered as we continue to develop a new
approach to authorizing annual migratory bird hunting seasons.
Bird Population Stressors
Issue: Impacts to migratory game bird populations from stressors,
particularly highly pathogenic avian influenza (HPAI) in waterfowl and
sea ducks, was not adequately accounted for in the determination of the
Federal limits for the hunting of these birds.
Response: HPAI viruses can severely affect domestic animal,
wildlife, and sometimes human health. Outbreaks of Eurasian lineage
HPAI viruses have been impacting domestic poultry and wild bird
populations in Europe and Asia since August 2020. Introduction of the
Eurasian lineage HPAI to North America occurred in late 2021, and at
least two additional virus introductions have occurred since then. HPAI
cases have now been confirmed in both domestic and wild birds in
numerous locations throughout Canada and the United States. The strain
of HPAI now present in North America has caused extensive morbidity and
mortality events in a range of wild bird species, like that seen in
Europe and Asia.
We are working with partners to monitor HPAI and other mortality
events of migratory birds, and we anticipate that our current
monitoring programs will detect any significant changes to migratory
game bird populations. The Service currently chairs the Interagency
Steering Committee for Avian Influenza Surveillance in Wild Migratory
Birds, which has increased avian influenza surveillance of wild birds
across the country. We are coordinating with our partners to ensure
effective surveillance through early detection, rapid communications,
quick and accurate laboratory diagnoses, and timely relay of diagnostic
findings. Also, we are working with our partners to implement
prevention and management actions where necessary.
Migratory bird population abundance, survival probabilities, and
productivity are influenced by a wide array of biotic and abiotic
factors and can vary in space and time. The core of migratory game bird
hunting regulations process is an annual cycle of bird population
monitoring and subsequent regulation development in cooperation with
the States through the Flyway Council system. This annual regulatory
cycle begins with the collection of current biological information and
subsequent Flyway Council consultation to share, review, and evaluate
migratory game bird population status, trends, allowable harvest, and
expected harvest from considered alternative regulations. The
information considered indirectly includes effects from various
stressors in determining appropriate Federal limits for migratory game
bird hunting regulations. Each year we apply the most current
information on game bird demographics and habitat conditions, which
incorporate effects from stressors, to our decision frameworks to help
inform decisions on appropriate Federal limits for annual migratory
game bird hunting. The annual nature of the migratory game bird hunting
regulations process helps ensure that harvest occurs at levels
compatible with migratory game bird population demographics. Bird
population monitoring, assessment, and consultation with the Flyway
Councils ensures that, regardless of the drivers of population status,
i.e., stressors, we have considered available information to establish
defensible and transparent decisions on annual hunting regulations to
achieve State and Federal mandates to conserve migratory birds and meet
objectives for hunting opportunity where possible.
Investments in conservation of quality habitats can help offset
negative impacts to migratory bird stressors. For example, the Federal
Migratory Bird Hunting and Conservation Stamp Act (16 U.S.C. 718-718j,
48 Stat. 452) requires all waterfowl hunters 16 years old or older to
buy an annual duck stamp. Funds generated from duck stamp sales are
used to protect waterfowl and wetland habitat. Over 1.5 million stamps
are sold each year, and, as of 2021, Federal duck stamps have generated
more than $1.1 billion for the conservation of more than 6 million
acres of waterfowl habitat in the United States. In addition to
waterfowl, numerous other birds, mammals, fish, reptiles, and
amphibians benefit from habitat protected by the duck stamp revenues,
including an estimated one-third of the nation's endangered and
threatened species. The healthy wetlands protected by duck stamp
funding sequester carbon and contribute to addressing the impacts of
climate change, including absorbing flood waters and storm surge. These
wetlands purify water supplies and provide economic support to local
communities as they attract outdoor recreationists from many different
backgrounds. Also, most States have similar Duck Stamp programs that
hunters and non-hunters alike support. These are examples of some of
the many programs where hunters and other conservationists contribute
toward habitat conservation and quality to help offset losses from
other stressors.
Interim Pintail Harvest Strategy
Issue: Concern about increasing the daily bag limit from one to
three pintails in the face of long-term and recent declines in pintail
abundance, lack of a restriction on female pintails within the overall
bag limit, and waiting until three seasons with a three-pintail daily
bag limit have occurred before evaluation to determine sustainability.
One commenter requested an evaluation to see if increasing the pintail
bag limit is associated with an increase in mallard abundance.
Response: For several reasons, pintail harvest management has been
cautious for the last two decades. There is evidence that the
continental carrying capacity for pintails declined by about 50 percent
in the early 1980s. Pintail abundance has hovered near historical lows
in the last decade.
The previous pintail harvest management decision framework was
first used in 2010, but the underlying population model parameters had
not been updated. Annual monitoring programs allowed for the
incorporation of an additional 10 years of data, including observed
harvest rates resulting from seasons with a two-bird daily bag limit
(the maximum allowed).
[[Page 40184]]
The new interim strategy uses a state-of-the-art integrated population
model that links regulations to an expected fall flight, harvest rate,
and the resulting effects on population status. An important change is
that the model of predicted harvest includes an estimate of fall
population size. This has an important effect on the decision framework
because the expected harvest decreases with the decreasing fall pintail
population size. The status of the pintail population has not changed
since the 1990s, and species-specific bag limits are still required
because the bag limits for the general duck season may be too great for
this population. However, incorporation of new data and updated
modeling techniques showed that more harvest opportunity was available
than previously realized.
When the 2010 decision framework for pintail harvest management was
negotiated, several Flyway Councils expressed concern that allowing a
three-bird bag limit option would raise the frequency of closed seasons
to intolerable levels. Many of these same concerns remain today, even
with the updated population and harvest models. Since 1988, a liberal
three-bird season for pintail has only occurred once (in 1997), thus
the estimate of the effect of a three-bird bag on harvest is uncertain.
Harvest rates from a three-bird bag limit may not be significantly
higher than from a two-bird bag. A power analysis suggests that three
additional years of experience with a three-bird bag would be needed to
clearly discern the difference between the effect of two-bird and
three-bird regulations on the harvest in the Pacific Flyway and at the
continental level, with longer periods needed to discern the same
difference in the other three flyways.
For these reasons, the revised decision framework for pintail
harvest management is intended to be implemented on an interim basis.
The interim phase will last until three hunting seasons have occurred
with a three-pintail bag limit to provide enough data for evaluation
and possible revision of the decision framework. Three seasons with a
3-bird pintail bag limit could happen in as few as three years, but it
could take longer, depending on pintail status and prescriptions from
the decision framework. The Service and Flyway Councils will continue
to review and carefully consider the status of pintails annually and
could be more restrictive than the decision framework if determined to
be necessary. However, a formal analysis of the expected harvest and
population level impacts from a three-pintail bag limit will not have
much statistical power for an assessment with less than 3 years of data
and results may be inconclusive.
Regarding the necessity for female pintail restrictions, see above
under our response to Federal Limits for Duck Hunting. In summary,
research and scientific modeling of the recently developed pintail
harvest strategy show that restricting the harvest of female pintails
would not meaningfully affect the subsequent breeding population. Also,
gender-specific pintail bag limits complicate hunting regulations and
place a burden on hunters that may have difficulty identifying gender
for some species of ducks in certain hunting situations. However,
hunters may use voluntary restraint in harvesting females within the
overall pintail bag limit if they choose.
Regarding an association between pintail and mallard abundance, we
have data on mallard and pintail abundance since 1955 from our
Waterfowl Breeding Population and Habitat Survey. There is no apparent
association in the data between pintail and mallard abundance. Mallard
and pintail abundance decreased for three decades beginning in about
1960. The decrease in abundance is expected to be associated with
decreased wetlands and nesting habitat conditions. Mallard abundance
recovered to historic levels in the 1990s and 2000s with increasing
wetlands and nesting habitat conditions. These are expected patterns
associated with wet and dry cycles on the prairies. However, pintail
abundance, unlike mallards, did not recover despite the general
improvement in habitat conditions. The continental carrying capacity
for pintails declined by about 50 percent in the early 1980s and
pintail abundance since then has hovered near the same level. Despite
mallard abundance changes, including substantial increases to historic
levels and recent declines in the last 5 to 10 years, pintail abundance
continues to hover around levels reflective of the apparent carrying
capacity changes observed in the early 1980s.
Better Identify Species Designations
Issue: Some game bird species designations lack clarity, and a
consolidated list that defines such terms may improve understanding of
the frameworks, scientific evaluation, and regulation compliance and
enforcement.
Response: Migratory game birds are defined in regulations at 50 CFR
20.11 as those species included in the terms of the conventions between
the United States and any foreign country for the protection of
migratory birds and belonging to five families of birds and for which
open seasons are authorized in 50 CFR part 20. Open hunting seasons may
include certain designated members of the avian families Anatidae
(ducks, geese, and swans), Columbidae (doves and pigeons), Gruidae
(cranes), Rallidae (rails, coots, and gallinules), and Scolopacidae
(shorebirds including woodcock and snipe). The Service maintains a list
at 50 CFR 10.13 of all species considered migratory birds and protected
under the MBTA. We regularly review and update this list (see 88 FR
49310, July 31, 2023, for the most recent update). Based on the game
bird families identified in 50 CFR 20.11 and associated species at 50
CFR 10.13, there are 185 migratory game bird species that may be
subject to open hunting seasons, but not all these species have open
hunting seasons.
The 2024-25 final frameworks rule (89 FR 68500, August 26, 2024)
established in 50 CFR 20 open hunting seasons in at least some part of
the United States for 93 game bird species on the list at 50 CFR 10.13.
Some potential game bird species have no open season anywhere within
the United States for reasons related to conservation concerns,
uncommon status in the United States, or lack of customary and
traditional hunting seasons. There are no customary and traditional
hunting seasons for ground-dwelling doves in the conterminous United
States and most of the species groups within the shorebird family
Scolopacidae. Specifically, there are no seasons for about 60 species
of curlews, dowitchers, dunlins, godwits, greenshank, knots,
phalaropes, redshanks, ruff, sanderlings, sandpipers, stints,
surfbirds, tattlers, turnstones, whimbrels, willets, and yellowlegs;
only woodcock and snipe have open hunting seasons.
Of the 93 game bird species with open seasons in the United States,
60 are common and 56 occur regularly in the contiguous United States.
The 60 common game bird species in the United States are managed as
species, subspecies, and population segments where appropriate. We
define population segments used in our status reports and assessments
to make harvest management decisions (e.g., eastern, mid-continent, and
western mallard population segments), and these definitions are
generally based on geographic areas with differing demographic
parameters important for consideration in assessments.
All migratory game bird hunting regulations are specific to species
or species groups and geographic areas, with the exception of the dusky
Canada goose subspecies, which occurs
[[Page 40185]]
primarily in west central Oregon and Washington and a special State
permit with goose identification training is required to hunt. The
collective terms ``dark'' and ``light'' geese are defined in the
frameworks and Federal regulations published each year under
Definitions. Dark geese means Canada geese, cackling geese, white-
fronted geese, brant (except in Alaska, California, Oregon, Washington,
and the Atlantic Flyway), and all other goose species except light
geese. Light geese means snow (including blue) geese and Ross's geese.
Species groups (i.e., swans, white-fronted geese, ducks, teal, scoters,
eiders, mergansers, coots, snipe, gallinules, woodcock, and doves) that
are not generally defined in hunting regulations include all migratory
game bird species on the 10.13 list that may be included in these
groups.
We agree that migratory game bird species designations lack clarity
in rulemaking for annual hunting regulations, and a consolidated list
that defines such terms may improve understanding of the frameworks and
regulations. We will add this additional clarifying text to the
preamble of subsequent cycle rulemaking for migratory game bird hunting
seasons.
Review of Flyway Council Recommendations
We received recommendations from all four Flyway Councils at the
May and November 2024 SRC meetings; all recommendations are from the
November meeting unless otherwise noted. Some recommendations supported
continuation of last year's frameworks. Due to the comprehensive nature
of the annual review of the frameworks performed by the Councils,
support for continuation of last year's frameworks is assumed for items
for which no recommendations were received. Council recommendations for
changes in the frameworks are summarized below. We have included only
the numbered items pertaining to issues for which we received
recommendations. Consequently, the issues do not follow in successive
numerical order.
1. Ducks
A. General Harvest Strategy
Council Recommendations: The Atlantic, Mississippi, Central, and
Pacific Flyway Councils recommended adoption of the liberal regulatory
alternative for their respective flyways.
Response: As we stated in the January 21, 2025, proposed rule (90
FR 7056), we intend to continue use of adaptive harvest management
(AHM) to help determine appropriate duck-hunting regulations for the
2025-26 season. AHM is a tool that permits sound resource decisions in
the face of uncertain regulatory impacts and provides a mechanism for
reducing that uncertainty over time. We use an AHM protocol (decision
framework) to evaluate four regulatory alternatives, each with a
different expected harvest level, and choose the optimal regulation for
duck hunting for the Mississippi, Central, and Pacific Flyways based on
the status and demographics of mallards and in the Atlantic Flyway
based on the status and demographics of four duck species (green-winged
teal, common goldeneye, ring-necked duck, and wood duck; hereafter,
eastern ducks). (See below, and the earlier referenced report
``Adaptive Harvest Management, 2025 Hunting Season'' for more details).
We have specific AHM protocols that guide appropriate bag limits and
season lengths for species of special concern, including black ducks,
scaup, pintails, and eastern mallards. These protocols have species-
specific regulatory alternatives.
For the 2025-26 hunting season, we will continue to use independent
optimizations to determine the appropriate regulatory alternative for
mallards in the Mississippi, Central, and Pacific Flyways and for four
duck species in the Atlantic Flyway. This means that we will develop
regulations for mid-continent mallards, western mallards, and eastern
ducks independently based on the breeding ducks that contribute
primarily to each Flyway. We detailed implementation of AHM protocols
for mid-continent and western mallards in the July 24, 2008, Federal
Register (73 FR 43290), and for eastern ducks in the September 21,
2018, Federal Register (83 FR 47868). We refer readers to the AHM
report referenced above under Population and Harvest Status for details
of our AHM decision framework assessments in support of decisions for
the 2025-26 duck hunting season.
Atlantic Flyway
For the Atlantic Flyway, we set duck-hunting regulations based on
the status and demographics of eastern ducks in eastern Canada and the
Atlantic Flyway States. For purposes of the assessment, eastern ducks
are those breeding in eastern Canada and Maine (Federal Waterfowl
Breeding Population and Habitat Survey (WBPHS) fixed-wing surveys in
the eastern survey area (i.e., subareas 51-53, 56, and 62-70), and
helicopter plot surveys in subareas 51-52, 63-64, 66-68, and 70-72),
and in Atlantic Flyway States from New Hampshire south to Virginia
(Atlantic Flyway Breeding Waterfowl Survey, AFBWS). Abundance estimates
for green-winged teal, ring-necked ducks, and goldeneyes are derived
annually by integrating fixed-wing and helicopter survey data from
eastern Canada and Maine (WBPHS subareas 51-53, 56, and 62-72). Counts
of green-winged teal, ring-necked ducks, and goldeneyes in the AFBWS
are negligible and therefore excluded from population estimates for
those species. Abundance estimates for wood ducks in the Atlantic
Flyway (Maine south to Florida) are estimated by integrating data from
the AFBWS and the North American Breeding Bird Survey. Counts of wood
ducks from the WBPHS are negligible and therefore excluded from
population estimates.
For the 2025-26 hunting season, we evaluated alternative harvest
regulations for eastern ducks using: (1) A management objective of 98
percent of maximum long-term sustainable harvest; (2) the 2025-26
regulatory alternatives; and (3) current stock-specific population
models and associated weights. Based on the liberal regulatory
alternative selected for the 2024-25 duck hunting season and the 2024
survey estimates of 0.87 million wood ducks, 0.47 million American
green-winged teal, 0.73 million ring-necked ducks, and 1.20 million
goldeneyes in the WBPHS eastern survey area and AFBWS, the optimal
regulation for the Atlantic Flyway is the liberal alternative.
Therefore, we concur with the recommendation of the Atlantic Flyway
Council regarding selection of the liberal regulatory alternative as
described in the January 21, 2025, proposed rule for the 2025-26
season.
Mississippi and Central Flyways
For the Mississippi and Central Flyways, we set duck-hunting
regulations based on the status and demographics of mid-continent
mallards and habitat conditions (pond numbers in Prairie Canada and the
United States). For purposes of the assessment, mid-continent mallards
are those breeding in central North America (WBPHS subareas 13-18, 20-
50, and 75-77) and in Michigan, Minnesota, and Wisconsin (State
surveys).
For the 2025-26 hunting season, we evaluated alternative harvest
regulations for mid-continent mallards using: (1) A management
objective of maximum long-term sustainable harvest; (2) the 2025-26
regulatory alternatives; and (3) the current population model. Based on
a liberal regulatory alternative selected for the 2024-25 hunting
season and the 2024 survey estimates of 6.61 million
[[Page 40186]]
mid-continent mallards and 5.16 million total ponds observed in Prairie
Canada and the United States, the optimal choice for the 2025-26
hunting season in the Mississippi and Central Flyways is the liberal
regulatory alternative. Therefore, we concur with the recommendations
of the Mississippi and Central Flyway Councils regarding selection of
the liberal regulatory alternative as described in the January 21,
2025, proposed rule for the 2025-26 season.
Pacific Flyway
For the Pacific Flyway, we set duck-hunting regulations based on
the status and demographics of western mallards. For purposes of the
assessment, western mallards consist of two population segments and are
those breeding in Alaska and Yukon Territory (WBPHS subareas 1-12) and
those breeding in the southern Pacific Flyway including California,
Oregon, Washington, and British Columbia (State and Provincial surveys)
combined.
For the 2025-26 hunting season, we evaluated alternative harvest
regulations for western mallards using: (1) A management objective of
maximum long-term sustainable harvest; (2) the 2025-26 regulatory
alternatives; and (3) the current population model. Based on a liberal
regulatory alternative selected for the 2024-25 hunting season and 2024
survey estimates of 0.94 million western mallards observed in Alaska
(0.51 million) and the southern Pacific Flyway (0.43 million), the
optimal regulation for the Pacific Flyway is the liberal regulatory
alternative. Therefore, we concur with the recommendation of the
Pacific Flyway Council regarding selection of the liberal regulatory
alternative as described in the January 21, 2025, proposed rule for the
2025-26 season.
B. Regulatory Alternatives
Council Recommendations: At the May 2024 SRC meeting, the Atlantic,
Mississippi, Central, and Pacific Flyway Councils recommended that AHM
regulatory alternatives for duck hunting during the 2025-26 season
remain the same as those used in the previous season.
Response: Consistent with Flyway Council recommendations, the AHM
regulatory alternatives proposed for the Atlantic, Mississippi,
Central, and Pacific Flyways in the January 21, 2025, proposed rule (90
FR 7056) will be used for the 2025-26 duck hunting season (see
accompanying table at the end of that document for specific
information). The AHM regulatory alternatives consist only of the
maximum season lengths, framework dates, and bag limits for total ducks
and mallards. For those species with specific harvest strategies
(pintails, black ducks, scaup, and eastern mallards), each with their
own set of regulatory alternatives, the species-specific strategies and
regulatory alternatives will be used for the 2025-26 hunting season.
C. Zones and Split Seasons
Zones and split seasons are special regulations designed to
distribute hunting opportunities and harvests according to temporal,
geographic, and demographic variability in waterfowl and other
migratory game bird populations. The Service has allowed the use of
zones to provide equitable distribution of duck hunting opportunities
within a State or region. The intent is not to increase total annual
waterfowl harvest in the zoned areas; harvest levels are to be adjusted
downward if they exceeded traditional levels as a result of zoning. In
1991, the Service developed guidelines to provide a framework for
controlling the proliferation of zones and split seasons in duck
hunting. Substantial concern remains about the unknown consequences of
zones and split seasons on duck populations and harvest redistribution
among States and flyways, potential reduced effectiveness of
regulations (season length and bag limit) to reduce duck harvest if
needed, and the administrative burden. The guidelines identified a
limited number of zone and split-season configurations that could be
used for duck hunting and restricted the frequency of changes in State
selection among these configurations to the beginning of 5-year
intervals.
The next opportunity for States to select zones and split-season
configurations for duck hunting is in 2025 for the fixed period of the
2026-2030 seasons. In the January 21, 2025, proposed rule (90 FR 7056),
we proposed to adopt the same zones and split-season guidelines and
configurations for duck hunting as we used for the 2021-25 seasons. We
discussed and presented guidelines and configurations for duck zones
and split seasons during the 2021-25 seasons in our August 21, 2020,
final rule (85 FR 51854 at 51857-51858). For those States wishing to
change zone and split-season configurations in time for the 2026-2030
seasons, we would need to receive configuration selections and zone
descriptions by August 31, 2025.
We also note that when we adopted guidelines for duck zones and
split seasons during the 2021-25 seasons, we offered a new
configuration (two zones with up to three season segments in each) at
the request of the four Flyway Councils. We expressed our sensitivity
to the States' desires for flexibility in addressing human dimensions
concerns of the hunting public (i.e., foster hunter recruitment,
retention, and satisfaction) despite our continued concerns about the
proliferation of zones, impacts to harvest, regulation complexity, and
administrative burden. Similarly, we revised the zones-splits
guidelines for the 2011-2015 period to allow two new options (four
zones with a continuous season, and three zones with up to two season
segments in each) at the request of the four Flyway Councils (77 FR
23094 at 23100-23101, April 17, 2012). Because the two zones and three
season segments configuration are new, we stated in 2020 (85 FR 51854
at 51857-51858, August 21, 2020) that States that select this
configuration must conduct an evaluation of impacts to hunter dynamics
(e.g., hunter numbers, satisfaction) and harvest during the fixed 5-
year period it is implemented (e.g., 2021-25 period). Five States
selected the new configuration for the 2021-25 period in two Flyways:
Atlantic (Connecticut, Maryland, North Carolina, and Virginia) and
Mississippi (Louisiana). These States must provide an evaluation
through the 2025-26 season regardless of actual implementation by
September 2026.
Council recommendations: The Central Flyway Council recommended two
additional zone and split-season configurations including: four zones
with two season segments, and three zones with three season segments.
Response: We do not currently support the Central Flyway Council's
recommendation for additional duck zone and split season
configurations. The expansion of zone-split configurations has been a
recurring issue for decades. Because of the unknown effects of
increasing configurations on duck populations, we have supported a
limited, but sufficient, number of options so that States may configure
their seasons to provide hunting opportunities for their constituents.
In 2011 and 2021, when we last added additional zones and split-seasons
configurations at the request of the Flyway Councils, we required
States to conduct an evaluation of impacts to hunter dynamics and
harvest so that we could evaluate the costs and benefits of additional
configurations. We look forward to receiving the evaluation reports by
September 2026 from States that selected the new zones and split-
seasons configuration that we added in 2020. Further, this issue may
better be
[[Page 40187]]
addressed through the work of the AHM Task Force that was recently
convened to consider the future of waterfowl harvest management. We are
open to discussion about how hunting regulations address hunter
satisfaction and hunter R3 (recruitment, retention, and reactivation)
objectives. We also need more information about the objectives and
measures of success from human dimension and biological perspectives.
The SRC supports continued discussion between Service staff and the
Flyway Councils and their technical committee on this issue. Therefore,
in this rule, we are adopting the zones and split-season guidelines and
configurations for duck hunting that we previously used and proposed in
the January 21, 2025, proposed rule (90 FR 7056).
D. Special Seasons/Species Management
i. Early Teal Seasons
Council Recommendations: The Atlantic, Mississippi, and Central
Flyway Councils recommended a 9-day special early teal season (6-teal
daily bag limit) or bonus daily bag limit of two blue-winged teal in
the respective States.
Response: The Service concurs with the recommendations. Based on
the 2024 survey estimate of 4.6 million blue-winged teal and our
special teal season guidelines, 9-day special early teal seasons or
bonus daily bag limits of two blue-winged teal are appropriate in the
respective States of the Atlantic, Mississippi, and Central Flyways.
Special early teal seasons have been allowed in parts of the
Atlantic, Mississippi, and Central Flyways since 1965. In considering
the Councils' recent recommendations for special early teal seasons, we
recognized that our special early teal season guidelines were developed
over multiple Federal Register publications, including August 28, 2014
(79 FR 51402 at 51403); April 30, 2014 (79 FR 24512 at 24518-24519);
August 23, 2013 (78 FR 52658 at 52659-52660); August 25, 2009 (74 FR
43008 at 43009); August 27, 2003 (68 FR 51658 at 51658); August 21,
2001 (66 FR 44010 at 44010-44011); and August 21, 1992 (57 FR 38202 at
38204), and were not described completely in one publication. Thus, we
are providing our special early teal season guidelines here completely
for ease of reference.
The Service's special early teal season guidelines allow special
early teal seasons in certain States within the Atlantic, Mississippi,
and Central Flyways when the spring blue-winged teal population
estimate from the WBPHS traditional survey area (i.e., subareas 1-18,
20-50, and 75-77) is at least 3.3 million birds. States authorized in
the Atlantic Flyway include Delaware, Florida, Georgia, Maryland, North
Carolina, South Carolina, and Virginia. States authorized in the
Mississippi Flyway include Alabama, Arkansas, Illinois, Indiana, Iowa,
Kentucky, Louisiana, Michigan, Minnesota, Mississippi, Missouri, Ohio,
Tennessee, and Wisconsin. States authorized in the Central Flyway
include Kansas, Nebraska, North Dakota, Oklahoma, South Dakota, Texas,
and parts of Colorado, Montana, New Mexico, and Wyoming.
The special early teal season lengths are 9 days if the blue-winged
teal population estimate is between 3.3 and 4.7 million birds and 16
days if the estimate is greater than 4.7 million birds. Season days
must occur in September prior to the regular duck season. The daily bag
limit is six teal in the aggregate. Shooting hours are one-half hour
before sunrise to sunset, except in the States of Arkansas, Illinois,
Indiana, Iowa, Michigan, Minnesota, Missouri, Ohio, South Carolina, and
Wisconsin, where the hours are from sunrise to sunset.
Blue-winged teal production States in the Mississippi Flyway (Iowa,
Michigan, Minnesota, and Wisconsin) and Central Flyway (Montana (part),
North Dakota, South Dakota, and Wyoming (part)), in lieu of selecting
special early teal seasons, may include additional daily bag and
possession limits of two and six blue-winged teal, respectively, during
the first part of the regular duck season equivalent in length to the
special early teal season. These extra blue-winged teal limits are in
addition (bonus) to the regular duck season daily bag and possession
limits.
When the blue-winged teal population estimate is less than 3.3
million birds, all available applicable data will be considered and
more restrictive limits or a closed season may be prescribed as
determined to be appropriate for special early teal seasons.
ii. Early Teal-Wood Duck Seasons
Council Recommendations: The Atlantic and Mississippi Flyway
Councils recommended in Florida, Kentucky, and Tennessee, in lieu of a
special early teal season, a 5-consecutive-day teal-wood duck season in
September. The daily bag limit may not exceed six teal and wood ducks
in the aggregate, of which no more than two may be wood ducks.
Response: The Service concurs with the recommendations. Based on
the 2024 survey estimate of 4.6 million blue-winged teal and our
special teal-wood duck season guidelines, a 5-consecutive-day teal-wood
duck season in September is appropriate with no additional teal only
days during special early teal-wood duck seasons. The daily bag limit
may not exceed six teal and wood ducks in the aggregate, of which no
more than two may be wood ducks.
Special early wood duck or teal-wood duck seasons have been allowed
in Florida, Kentucky, and Tennessee since 1981. In considering the
Councils' recent recommendations for special early teal-wood duck
seasons, we recognized that our special early teal-wood duck season
guidelines were developed over multiple Federal Register publications,
including August 28, 2014 (79 FR 51402 at 51403-51404); August 21, 2001
(66 FR 44010 at 44011); August 21, 1991 (56 FR 41608 at 41608); August
9, 1988 (53 FR 29897 at 29899); and July 29, 1981 (46 FR 38868 at
38868), and were not described completely in one publication. Thus, we
are providing our special early teal-wood duck season guidelines here
completely for ease of reference.
The Service's early teal-wood duck season guidelines allow special
early teal-wood duck seasons in Florida, Kentucky, and Tennessee when
the spring blue-winged teal population estimate from the WBPHS
traditional survey area is at least 3.3 million birds. The season
lengths are 5 days. Season days must occur in September prior to the
regular duck season. The daily bag limit may not exceed six teal and
wood ducks in the aggregate, of which no more than two may be wood
ducks. A special early teal-wood duck season is not allowed in Florida,
Kentucky, or Tennessee if that State offers a special early teal
season.
Four additional teal-only days may be added to the special early
teal-wood duck seasons when the blue-winged teal population estimate is
greater than 4.7 million birds. The additional teal-only days must be
in September, contiguous with the special early teal-wood duck seasons,
and before the regular duck seasons. The daily bag limit during the
teal-only days is six teal in the aggregate.
When the blue-winged teal population estimate is less than 3.3
million birds, all available applicable data will be considered and
more restrictive limits or a closed season may be prescribed as
determined to be appropriate for special early teal-wood duck seasons.
[[Page 40188]]
iii. Black Ducks
Council Recommendations: The Atlantic and Mississippi Flyway
Councils recommended adoption of the moderate regulatory alternative
for their respective flyways. The flyway-specific regulations consist
of a daily bag limit of two black ducks and a season length of 60 days.
Response: The Service, Atlantic and Mississippi Flyway Councils,
and Canada adopted an international AHM protocol for black ducks in
2012 (77 FR 49868, August 17, 2012) whereby we set black duck hunting
regulations for the Atlantic and Mississippi Flyways (and Canada) based
on the status and demographics of these birds.
For the 2025-26 hunting season, we evaluated alternative harvest
regulations for black ducks using: (1) a management objective of 98
percent of maximum long-term sustainable harvest; (2) the black duck
regulatory alternatives; and (3) the current population model. Based on
the moderate regulatory alternative selected for the 2024-25 hunting
season and the 2024 survey estimate of 0.86 million black ducks, the
optimal regulation for the Atlantic and Mississippi Flyways is the
moderate alternative. Therefore, we concur with the recommendations of
the Atlantic and Mississippi Flyway Councils.
iv. Canvasbacks
Council Recommendations: The Atlantic, Mississippi, Central, and
Pacific Flyway Councils recommended adoption of the liberal regulatory
alternative for their respective flyways. The flyway-specific
regulations consist of a daily bag limit of two canvasbacks and a
season length of 60 days in the Atlantic and Mississippi Flyways, 74
days in the Central Flyway, and 107 days in the Pacific Flyway.
Response: As we discussed in the March 28, 2016, Federal Register
(81 FR 17302), the canvasback harvest strategy that we relied on until
2015 was not viable under our new regulatory process because it
required biological information that was not yet available at the time
a decision on season structure needed to be made. We do not yet have a
new harvest strategy to propose for use in guiding canvasback harvest
management in the future. However, we have worked with technical staff
from the four Flyway Councils to develop a decision framework
(hereafter, decision support tool) that relies on the best biological
information available to develop recommendations for annual canvasback
harvest regulations. The decision support tool uses available
information (1994-2014) on canvasback breeding population size in
Alaska and north-central North America (WBPHS traditional survey area),
growth rate, survival, and harvest, and a population model to evaluate
alternative harvest regulations based on a management objective of
maximum long-term sustainable harvest. The decision support tool calls
for a closed season when the population is below 460,000, a 1-bird
daily bag limit when the population is between 460,000 and 480,000, and
a 2-bird daily bag limit when the population is greater than 480,000.
Based on the 2024 survey estimate of 566,000 canvasbacks, we concur
with the recommendations of the four Flyway Councils regarding
selection of the liberal regulatory alternative for the 2025-26 season.
v. Pintails
Over the past 5 years, scientists from the U.S. Geological Survey
(USGS) and the Service, in consultation with the Flyway Councils, have
collaborated on the development of a revised decision framework for
pintail harvest management. The Flyway Councils and Service undertook
the revision process due to several concerns about the current strategy
(adopted in 2010; see 75 FR 44856 at 44860, July 29, 2010). Concerns
included public desires for inclusion of a more liberal regulatory
alternative (3-pintail daily bag limit), reliance on outdated modeling
techniques and data, and communication challenges associated with the
regulatory schedule. To address these concerns, the Service convened
the national Pintail Working Group (PWG) composed of two
representatives from each Flyway, the four Service Flyway
Representatives, and technical experts from the Service and USGS.
The PWG evaluated pintail population and harvest dynamics, built
new models using updated data and modern estimation methods, and
developed and evaluated many alternative harvest strategies. An
important change is that the model of predicted harvest includes an
estimate of fall population size. This has an important effect on the
harvest strategy because the expected harvest decreases with decreasing
fall pintail population size. The strategy recognizes that there is
sustainable harvest under conditions that were not previously thought
sustainable (i.e., expected increase in frequency of regulatory
alternatives with liberal pintail daily bag limits, including the
possibility for three pintails).
In January 2024, after extensive consultation, the PWG proposed an
interim harvest strategy to inform harvest management decisions for
pintails and to learn about the effects of a 3-bird daily bag limit
(new alternative) on management objectives. The interim strategy is
available for review in the PWG report entitled, ``Proposed Interim
Northern Pintail Harvest Strategy'' dated February 9, 2024. The interim
strategy is intended to be implemented until three hunting seasons with
a 3-bird daily bag limit have been realized (i.e., trial phase over
three or more hunting seasons) with an additional allowance for 2 years
for data collection and analysis, review of performance, and evaluation
of updated alternative strategies. Evaluation results will be provided
to the Flyway technical committees for consideration in the development
of a proposed operational harvest strategy, which may or may not
include an option for a 3-bird daily bag limit.
We greatly appreciate the time and attention over the last 5 years
that the PWG has devoted to review and consideration of the current
pintail harvest strategy, technical updates, and the various
alternatives for implementing a derived pintail harvest strategy. The
revised interim strategy addresses stakeholder concerns with the
current strategy and includes important technical updates with
implications for our harvest management policy. In compliance with the
Office of Management and Budget's Information Quality Act (section 515
of Pub. L. 106-554) guidelines (67 FR 8452, Feb. 22, 2022) and Service
policy, a scientific peer review of the interim harvest strategy model
was completed in early May 2024; during that review, no technical
issues or concerns were identified, and reviewer comments have been
addressed. In the January 21, 2025, proposed rule (90 FR 7056), we
proposed to adopt the interim harvest strategy for pintail harvest
management as described by the PWG in their ``Proposed Interim Northern
Pintail Harvest Strategy'' report, beginning with the 2025-26 hunting
seasons. In this document, we are adopting the interim harvest strategy
for pintail harvest management as described above.
Council Recommendations: The Atlantic, Mississippi, Central, and
Pacific Flyway Councils recommended adoption of the liberal regulatory
alternative with a 3-pintail daily bag limit for their respective
flyways. The flyway-specific regulations consist of a season length of
60 days in the Atlantic and Mississippi Flyways, 74 days in the Central
Flyway, and 107 days in the Pacific Flyway.
Response: The Service and the four Flyway Councils adopted an AHM
protocol for pintails in this document
[[Page 40189]]
whereby we set pintail hunting regulations in all four flyways based on
the status and demographics of these birds.
For the 2025-26 hunting season, we evaluated alternative harvest
regulations for pintails using: (1) a management objective of maximum
long-term sustainable harvest, including a constraint to provide an
open hunting season when the observed breeding population is above 1.2
million birds; (2) the pintail regulatory alternatives; and (3) the
current population model. Based on the 2024 survey estimates of 1.97
million pintails at a mean latitude of 57.02 degrees (WBPHS traditional
survey area), the optimal regulation for all four flyways is the
liberal alternative with a 3-pintail daily bag limit. Therefore, we
concur with the recommendations of the four Flyway Councils for the
2025-26 season.
vi. Scaup
Council Recommendations: The Atlantic, Mississippi, Central, and
Pacific Flyway Councils recommended adoption of the restrictive
regulatory alternative for their respective flyways. The flyway-
specific regulations consist of a 60-day season with a 1-bird daily bag
limit during 40 consecutive days and a 2-bird daily bag limit during 20
consecutive days in the Atlantic Flyway; a 60-day season with a 2-bird
daily bag limit during 45 consecutive days and a 1-bird daily bag limit
during 15 consecutive days in the Mississippi Flyway; a 1-bird daily
bag limit for 74 days in the Central Flyway (which may have separate
segments of 39 days and 35 days); and an 86-day season with a 2-bird
daily bag limit in the Pacific Flyway.
Service Response: The Service and four Flyway Councils adopted an
AHM protocol for scaup in 2008 (73 FR 43290, July 24, 2008, and 73 FR
51124, August 29, 2008), whereby we set scaup hunting regulations in
all four flyways based on the status and demographics of these birds.
For the 2025-26 hunting season, we evaluated alternative harvest
regulations for scaup using: (1) a management objective of 95 percent
of maximum sustainable harvest; (2) the scaup regulatory alternatives;
and (3) the current population model. Based on a restrictive regulatory
alternative for the 2024-25 season, and the 2024 survey estimate of
4.07 million scaup (WBPHS traditional survey area), the optimal
regulation for all four flyways is the restrictive alternative.
Therefore, we concur with the recommendations of the four Flyway
Councils regarding selection of the restrictive alternative for the
2025-26 season.
ix. Eastern Mallards
Council Recommendations: The Atlantic Flyway Council recommended
adoption of the liberal regulatory alternative for their flyway. The
Atlantic Flyway regulation consists of a daily bag limit of four
mallards, no more than two of which may be hens, and a season length of
60 days.
Response: The Service and Atlantic Flyway Council adopted an AHM
protocol for eastern mallards in 2023 (88 FR 6054, January 30, 2023)
whereby we set mallard hunting regulations in the Atlantic Flyway based
on the status and demographics of these birds.
For the 2025-26 hunting season, we evaluated alternative harvest
regulations for eastern mallards using: (1) a management objective of
98 percent of maximum sustainable harvest; (2) the eastern mallard
regulatory alternatives; and (3) the current population model. Based on
a liberal regulatory alternative for the 2024-25 season, and the 2024
survey estimate of 1.17 million eastern mallards (WBPHS eastern survey
area and AFBWS), the optimal regulation for the Atlantic Flyway is the
liberal alternative. Therefore, we concur with the recommendation of
the Atlantic Flyway Council regarding selection of the liberal
alternative for the 2025-26 season.
4. Canada and Cackling Geese
B. Regular Seasons
Council Recommendations: The Atlantic Flyway Council recommended
the restrictive regulatory alternative as defined in the Council's
harvest strategy for Atlantic Population (AP) Canada geese (30-day
season with a daily bag limit of one goose) in the AP zones of the
Atlantic Flyway. The Pacific Flyway Council recommended several changes
to the Canada and cackling goose season framework in the Pacific
Flyway. Specifically:
1. Change the framework ending date in Oregon's Northwest Permit
Zone and Washington's Area 2 Inland and Area 2 Coastal (Southwest
Permit Zone) from March 10 to February 15;
2. Reduce the season length in Oregon's Northwest Permit Zone and
Washington's Area 2 Inland and Area 2 Coastal (Southwest Permit Zone)
from 107 days to 74 days;
3. Reduce the daily bag limit in Oregon's Northwest Permit Zone and
Washington's Area 2 Inland and Area 2 Coastal (Southwest Permit Zone)
from three to two Canada and cackling geese in the aggregate;
4. Reduce the daily bag limit in Washington's Areas 1 and 3 from
four to three Canada and cackling geese in the aggregate; and
5. Reduce the daily bag limit in Alaska's Units 9, 17, and 18 from
four to three Canada and cackling geese in the aggregate.
Response: We agree with the Atlantic Flyway Council's
recommendation to implement the restrictive regulatory alternative as
described in the Council's harvest strategy for AP Canada geese for the
2025-26 hunting season. The AP Canada goose is one of three populations
of Canada geese managed in the Atlantic Flyway and has a long history
of intensive management due to its importance to subsistence and sport
hunters in Canada and the United States. In 2021, the Council adopted a
harvest strategy to prescribe appropriate hunting regulations for AP
Canada geese commensurate with the status of this population. The
Council's AP Canada goose harvest strategy established three metrics
for informing annual recommendations: (1) population model predicted
abundance of breeding pairs in the subsequent year; (2) long-term trend
in productivity; and (3) long-term trend in total population abundance.
The harvest strategy recommends the moderate regulatory alternative
when the predicted abundance is between 125,000 and 160,000 pairs. The
2024 breeding population estimate for AP Canada geese is 89,000 pairs,
which is a 23 percent decrease from 2023. The estimated number of
breeding pairs has decreased by 5 percent per year over the last 10
years. The 2024 total abundance estimate is 606,672 birds, which is
slightly less than the 2023 estimate of 611,590 birds. The estimated
2024 productivity is 0.89 which is the second lowest estimate recorded
since 1997. Using the most current breeding population and habitat
data, the predicted 2025 breeding population estimates is 133,500
pairs. The predicted abundance is consistent with the moderate
regulatory alternative, but the long-term trends in productivity and
total abundance indicate the restrictive regulatory alternative is
appropriate.
We also agree with the Pacific Flyway Council's recommended changes
to the season frameworks for Canada and cackling geese in the Pacific
Flyway. Seven subspecies of white-cheeked geese winter in the Pacific
Flyway and are managed as separate populations. All populations of
white-cheeked geese with open hunting seasons in the Pacific Flyway are
at or above the Council's population objectives except for minima
cackling geese. The most recent 3-year (2022-2024) average fall
projected
[[Page 40190]]
population estimate for minima cackling geese is 175,055 birds and is
30 percent below the Council's population objective midpoint of 250,000
(range is <plus-minus> 10 percent, 225,000-275,000). Furthermore, the
declining trend in abundance from the three recent abundance estimates
(238,093, 160,630, and 126,443 birds) indicates the current population
size may be well below the 3-year average.
There is substantial mixing of white-cheeked geese populations
during winter in the Pacific Flyway. Restrictions in the Canada and
cackling goose season frameworks (specifically daily bag limits, season
lengths, and season dates) in the Pacific Flyway for Oregon's Northwest
Permit Zone and Washington's Southwest Permit Zone (permit zones),
Washington's Areas 1 and 3, and Alaska's Units 9, 17, and 18 are
intended to reduce harvest for minima cackling geese and, to some
extent, Taverner's cackling geese. The Pacific Flyway Council's
management plan for minima cackling geese specifies that when the
population index is below 225,000 birds, actions should be taken to
increase abundance to the objective level. The index fell below this
threshold level in 2021, and consequently the daily bag limit was
reduced from four to three geese in the permit zones of Oregon and
Washington based on the Pacific Flyway Council's recommendation at that
time. However, the abundance index for minima cackling geese has
continued to decline and is now at the lowest level since 1994, the
year harvest was reopened after a decade of closure. The Council's plan
does not prescribe specific actions to reduce harvest in response to
population indices below 225,000 birds. However, the Pacific Flyway
Council has estimated that the recommended restrictions should reduce
harvest by at least 33 percent in the permit zones of Oregon and
Washington where most (80 percent) of the minima cackling goose harvest
occurs, and by 10 percent in other primary areas in Washington and
Alaska, where minima cackling goose harvest occurs. Therefore, the
recommended restrictions will allow the minima cackling goose
population size to increase over time.
5. White-Fronted Geese
Council Recommendations: The Pacific Flyway Council recommended
allowing a 3-segment season for Oregon's Mid-Columbia Goose Zone in the
season framework for white-fronted geese in the Pacific Flyway.
Response: We agree with the Pacific Flyway Council's
recommendation. Current frameworks allow a 3-segment split for the snow
goose, Canada and cackling goose, and greater white-fronted goose
seasons in the Pacific Flyway; however, for Canada geese and white-
fronted geese, this arrangement requires Pacific Flyway Council and
Service approval and a 3-year evaluation by each participating State.
The approval of 3-segments for the white-fronted goose season in
Oregon's Mid-Columbia Goose Zone will allow this season to be
concurrent with the already approved 3-segment seasons for Canada and
cackling geese and snow geese in this zone, which will help reduce
regulation complexity and simultaneously maintain maximum flexibility
in the use of season segments to address issues associated with white
goose abundance over objectives. Harvest data suggest white-fronted
geese rarely encounter hunters in Oregon's Mid-Columbia Goose Zone, and
the change is not expected to influence harvest levels. The current 3-
year average predicted fall population estimate (2022-24) for the
Pacific population of greater white-fronted geese is 510,884, which is
substantially above the Pacific Flyway's population objective of
300,000. Any possible additional harvest of greater white-fronted geese
from this regulatory change will be negligible for the Pacific Flyway.
6. Brant
Council Recommendations: The Pacific Flyway Council recommended
that the Service revise their Pacific brant harvest strategy based on
the Council's revised harvest strategy for use beginning with the 2025-
2026 hunting season. The Council also recommended that the brant season
framework for Alaska, California, Oregon, and Washington be determined
annually based on the Council's Pacific brant harvest strategy and
pending current results from the Fall Brant Survey at Izembek Lagoon,
Alaska (FBS) in about February prior to the hunting season. If results
of the FBS are not available, the most recent FBS should be used.
Response: We agree with the Pacific Flyway Council's
recommendations. The Service adopted the Pacific Flyway Council's brant
harvest strategy in August 2020 because the Council's harvest strategy
used to determine the Pacific brant season frameworks does not fit well
within the timing of our regulatory process for proposed frameworks
(see 85 FR 51854 at 51860, August 21, 2020).
The Service developed a more statistically rigorous survey to index
abundance of Pacific brant than is currently used. The current survey
is a ground and aerial count of brant during winter in accessible
primary wintering areas from Alaska to Mexico. The count is interpreted
as the absolute minimum population size. The new survey is a population
estimate based on an aerial photographic survey in the fall at Izembek
Lagoon, Alaska, where it is thought that nearly the entire population
is concentrated during southward migration. The survey now includes a
sampling and inference design, replicate surveys, a measure of
uncertainty, and a greater proportion of the population of Pacific
brant (about two times the previous survey). The Service and Pacific
Flyway Council have agreed to discontinue the winter brant survey in
favor of the more reliable FBS. Thus, the current harvest strategy for
Pacific brant will no longer be functional without adjustment to the
new abundance survey.
The Pacific Flyway Council revised their brant harvest strategy for
the new abundance survey in August 2024. The revised harvest strategy
maintains the current season closure level when the abundance estimate
is less than 102,000 brant, and adjusts the population objective and
levels for restrictive, moderate, and liberal season frameworks upward
by a factor of two based on the ratio of abundance from winter counts
to fall estimates for the 5 years that the surveys overlapped (i.e.,
the period from 2017 through 2023). Accordingly, the Service is
replacing the Council's harvest strategy we adopted in 2020 with the
Council's revised harvest strategy, which is described below.
In developing the annual hunting season frameworks for Pacific
brant, the Pacific Flyway Council and the Service use the average of
the three most recent abundance estimates (index) from the FBS in about
February to determine the upcoming season lengths and daily bag limits.
Information on abundance of Pacific brant from the FBS is available in
about February each year, which is after the date that proposed
frameworks are formulated in the regulatory process. However, the data
are typically available by the expected publication of final
frameworks. When we acquire the survey data annually, we determine the
appropriate frameworks for the upcoming Pacific brant season according
to the harvest strategy in the Pacific Flyway Council's management plan
for Pacific brant, as described below, and publish the results in the
final frameworks rule.
<bullet> If the FBS index is <102,000 brant, then the brant season
is closed, and the season may not reopen until the index exceeds
112,000 brant.
[[Page 40191]]
<bullet> If the FBS index is between 102,000 and 243,000 brant,
then the season length and daily bag limit in Alaska is 51 days and 2
brant, and in California, Oregon, and Washington is 16 days and 2
brant.
<bullet> If the FBS index is between 243,001 and 293,000 brant,
then the season length and daily bag limit in Alaska is 107 days and 2
brant, and in California, Oregon, and Washington is 27 days and 2
brant.
<bullet> If the FBS index is greater than 293,000 brant, then the
season length and daily bag limit in Alaska is 107 days and 4 brant,
and in California, Oregon, and Washington is 37 days and 2 brant.
Under all of the above open-season alternatives, the framework
outside season dates in Alaska are September 1 through January 26, in
California and Oregon are the Saturday closest to September 24 through
December 15, and in Washington are the Saturday closest to September 24
through the last Sunday in January.
We note that the threshold (>=112,000 brant) to resume an open
season following season closure is purposefully 10,000 brant higher
than the threshold (>=102,000 brant) to maintain an open season. This
adds additional conservatism into the strategy and provides more
confidence that the population has recovered before open seasons
resume. It also helps avoid a situation where the season toggles
between open and closed among successive hunting seasons.
The recent 3-year average (2022-2024) FBS count of Pacific brant
was 211,823. Based on the harvest strategy, the appropriate season
length and daily bag limit framework for Pacific brant in the 2025-26
season is a 51-day season with a 2-bird daily bag limit in Alaska, and
a 16-day season with a 2-bird daily bag limit in California, Oregon,
and Washington.
9. Sandhill Cranes
Council Recommendations: The Central and Pacific Flyway Councils
recommended that allowable harvest of the Rocky Mountain Population
(RMP) of sandhill cranes be determined annually based on the formula
described in the Pacific and Central Flyway Councils' management plan
for RMP cranes when the current fall abundance and recruitment data
become available in about January prior to the hunting season.
Response: We agree with the Central and Pacific Flyway Councils'
recommendations. The Service adopted the Central and Pacific Flyway
Councils' RMP sandhill crane harvest strategy in March 2016 because the
harvest strategy used to calculate the allowable harvest of RMP cranes
does not fit well within our current regulatory process for proposed
frameworks (see 81 FR 17302 at 17307, March 28, 2016). In developing
the annual proposed frameworks for RMP cranes, the Flyway Councils and
the Service use the fall abundance and recruitment surveys of RMP
cranes to determine annual allowable harvest. Results of the fall
abundance and recruitment surveys of RMP cranes are available in about
January each year, which is after the date that proposed frameworks are
formulated in the regulatory process. However, the data are typically
available by the expected publication of final frameworks. When we
acquire the survey data annually in about January, we determine the
appropriate allowable harvest for the upcoming RMP crane season
according to the harvest strategy in the Central and Pacific Flyway
Councils' management plan for RMP cranes and publish the results in the
final frameworks rule.
The 2024 fall RMP crane abundance estimate was 24,909 cranes,
resulting in a 3-year (2022-2024) average of 23,603 cranes, which is
similar to the previous 3-year average of 23,287 cranes. The RMP crane
recruitment estimate was 9.34 percent young in the fall population,
resulting in a 3-year (2022-2024) average of 10.66 percent, which is
similar to the previous 3-year average of 10.47 percent. Using the
current harvest strategy and the above most recent 3-year average
abundance and recruitment estimates, the allowable harvest for the
2025-26 season is 3,232 cranes, which is similar to the previous season
allowable harvest of 3,006 cranes.
16. Doves
Similar to duck hunting (see above under 1. Ducks), the Service has
allowed the use of zones to provide equitable distribution of dove
hunting opportunities within a State or region. The intent is not to
increase total annual dove harvest in the zoned areas; harvest levels
are to be adjusted downward if they exceed traditional levels as a
result of zoning. In 2006, the Service developed guidelines to provide
a framework for controlling the proliferation of zones and split
seasons in dove hunting (see 71 FR 51406 at 51408, August 29, 2006).
Substantial concern remains about the unknown consequences of zones and
split seasons on dove populations and harvest redistribution among
States and flyways, potential reduced effectiveness of regulations
(season length and bag limit) to reduce dove harvest if needed, and the
administrative burden of implementing zones and splits. The guidelines
identified a limited number of zone and split-season configurations
that could be used for dove hunting and restricted the frequency of
changes in State selection among these configurations to the beginning
of a 5-year interval.
The next opportunity for States to select zones and split-season
configurations for dove hunting is in 2025 for the fixed period of the
2026-2030 seasons. In the January 21, 2025, proposed rule (90 FR 7056),
we proposed to adopt the same zones and split-season guidelines and
configurations for dove hunting that we used for the 2021-25 seasons.
We discussed and presented guidelines and configurations for dove zones
and split seasons during the 2021-25 seasons in the August 21, 2020,
final rule (85 FR 51854 at 51865-51866). In this document, we are
adopting the zones and split-season guidelines and configurations for
dove hunting as described above. For those States wishing to change
zone and split-season configurations in time for the 2026-2030 seasons,
we must receive configuration selections and zone descriptions by
August 31, 2025.
Council Recommendations: The Atlantic, Mississippi, Central, and
Pacific Flyway Councils recommended adoption of the standard regulatory
alternative as prescribed in the national mourning dove harvest
strategy for their respective Mourning Dove Management Units. The
standard regulatory alternative consists of a 90-day season and 15-bird
daily bag limit for States within the Eastern and Central Management
Units, and a 60-day season and 15-bird daily bag limit for States in
the Western Management Unit (WMU). Also, the Pacific Flyway Council
recommended allowing up to 15 white-winged doves in the 15-dove
aggregate daily bag limit for the dove season in Arizona and
California.
Response: Based on the harvest strategies and current population
status, we agree with the recommended selection of the standard season
frameworks for doves in the Eastern, Central, and Western Management
Units for the 2025-26 season. We also agree with the Pacific Flyway
Council's recommendation, which effectively removes the dove season
restriction of 10 white-winged doves within the 15-dove aggregate daily
bag limit in Arizona and California. This change simplifies the dove
season regulations in Arizona and California and is consistent with the
dove season frameworks for all other States in the WMU.
[[Page 40192]]
The Pacific Flyway Council adopted a revised management plan for
western white-winged doves in August 2024. The Council's plan includes
a harvest strategy and establishes a harvest management objective to
maintain hunting regulations that meet overall objectives of the plan
and are consistent with the National Mourning Dove Harvest Strategy.
This is because the dove season includes white-winged and mourning
doves in an aggregate daily bag limit. The Council's white-winged dove
harvest strategy is based on an assessment of the white-winged dove
harvest potential and long-term trend in their abundance provided by
the North American Breeding Bird Survey (BBS). The BBS indicates white-
winged dove abundance in the WMU is stable over the long term (1968-
2022) at about 68 white-winged doves per route in the WMU. Based on
current data from the BBS, the Council's white-winged dove harvest
strategy prescribes the standard regulatory alternative, which allows
an aggregate daily bag limit of 15 doves with no species-specific
restrictions in the WMU.
Within the WMU, white-winged doves are most abundant in Arizona.
The Arizona spring call count survey indicates white-winged doves have
increased in abundance considerably during the recent 10 years. White-
winged doves generally begin southward migration from Arizona and
California during the 15-day dove season allowed in early September and
are south of Arizona and California prior to the late dove season
starting as early as November 1. Because of the timing of white-winged
dove southward migration, the additional harvest of white-winged doves
from this bag limit change is expected to be negligible for white-
winged dove harvest in the WMU. There is no expected increase in the
harvest of mourning doves, but harvest could be reduced by any
buffering effect by increased white-winged dove harvest in the
aggregate daily bag limit of doves.
17. Alaska
Council Recommendations: The Pacific Flyway Council recommended
several changes to the season frameworks for Alaska. Specifically, the
Council recommended closing the hunting season for emperor geese in
addition to the recommendations already discussed above under 1. Ducks,
4. Canada and Cackling Geese, and 6. Brant.
Response: We agree with the Pacific Flyway Council's recommendation
to close the emperor goose season in Alaska. The Pacific Flyway
Council's harvest strategy in their management plan for the emperor
goose uses the Yukon-Kuskokwim Delta Coastal Zone Survey to assess
emperor goose population abundance in the spring and prescribe harvest
management regulations relative to the Council's population objective
and abundance threshold levels. The Council's harvest strategy provides
that the emperor goose season will be open with an allowable harvest of
1,000 birds if the Coastal Zone survey abundance index from the
previous year is greater than 28,000 birds, open with an allowable
harvest of 500 birds if the index is between 23,000 and 28,000 birds
and closed if the index is below 23,000 birds. The most recent (2024)
Coastal Zone survey abundance index for emperor geese is 18,788 birds,
which is 45 percent below the Council's population objective of 34,000
birds and below the abundance level necessary to prescribe an open
hunting season for emperor geese.
See above under 1. Ducks, 4. Canada and Cackling Geese, and 6.
Brant, for the Service's response to the other Pacific Flyway Council's
recommendations for changes to the season frameworks for Alaska.
Required Determinations
National Environmental Policy Act (NEPA) Consideration
The programmatic document, Second Final Supplemental Environmental
Impact Statement: Issuance of Annual Regulations Permitting the Sport
Hunting of Migratory Birds (EIS No. 20130139), filed with the
Environmental Protection Agency (EPA) on May 24, 2013, addresses NEPA
compliance by the Service for issuance of the annual framework
regulations for hunting of migratory game bird species. We published a
notice of availability in the Federal Register on May 31, 2013 (78 FR
32686), and our record of decision on July 26, 2013 (78 FR 45376). We
also address NEPA compliance for waterfowl hunting frameworks through
the annual preparation of separate environmental assessments, the most
recent being the Duck Hunting Regulations for the 2024-25 Season and
its corresponding 2024 finding of no significant impact.
Endangered Species Act Consideration
Before issuance of the 2025-26 migratory game bird hunting
regulations, we will comply with provisions of the Endangered Species
Act of 1973, as amended (ESA; 16 U.S.C. 1531-1543), to ensure that
hunting is not likely to jeopardize the continued existence of any
species designated as endangered or threatened or adversely modify or
destroy its critical habitat and is consistent with conservation
programs for those species. Consultations under section 7 of the ESA
may cause us to change proposals in future supplemental proposed
rulemaking documents.
Regulatory Planning and Review--E.O.s 12866, 13563, and 14192
E.O. 12866, as reaffirmed by E.O. 13563, provides that the Office
of Information and Regulatory Affairs (OIRA) in the Office of
Management and Budget (OMB) will review all significant rules. This
action is a ``significant regulatory action,'' as defined under section
3(f)(1) of E.O. 12866 (58 FR 51735, October 4, 1993).
An economic analysis was prepared for the 2025-26 migratory bird
hunting season. This analysis was based on data from the 2011 and the
2016 National Survey of Fishing, Hunting, and Wildlife-Associated
Recreation (National Survey), the most recent years for which data are
available. See discussion under Required Determinations, Regulatory
Flexibility Act, below. This analysis estimated consumer surplus for
four alternatives for hunting regulations. As defined by OMB in
Circular A-4, consumers' surplus is the difference between what a
consumer pays for a unit of a good or service and the maximum amount
the consumer would be willing to pay for that unit. The duck hunting
regulatory alternatives are (1) not opening a hunting season; (2)
issuing restrictive regulations that allow fewer days than the 2024-25
season; (3) issuing moderate regulations that allow more days than in
Alternative 2 but fewer days than the 2024-25 season, and (4) issuing
liberal regulations that allow days similar to the 2024-25 season. The
estimated consumer surplus associated with liberal regulations issued
for the 2024-25 season across all flyways was $624 million to $816
million (2024$). We also chose Alternative 4 (liberal regulations) for
the 2009-10 through 2023-24 seasons. The 2025-26 analysis is part of
the record for this rulemaking action and is available at <a href="https://www.regulations.gov">https://www.regulations.gov</a> at Docket No. FWS-HQ-MB-2024-0127.
This rule is not an E.O. 14192 regulatory action because this
rulemaking is related to routine hunting and fishing regulatory actions
that establish annual harvest limits.
Regulatory Flexibility Act (5 U.S.C. 601 et seq.)
The annual migratory bird hunting regulations have a significant
economic impact on substantial numbers of small entities, such as
restaurants, grocery
[[Page 40193]]
stores, lodging, transportation, and sporting goods stores under the
Regulatory Flexibility Act (5 U.S.C. 601 et seq.). A final regulatory
flexibility analysis was prepared to analyze the economic impacts of
the annual hunting regulations on small business entities. This
analysis is updated annually. The primary source of information about
hunter expenditures for migratory game bird hunting is the National
Survey, which is generally conducted at 5-year intervals. The 2022
National Survey did not collect migratory bird expenditure data, so the
2025-26 migratory bird hunting season analysis is based on the 2022
National Survey's prorated total hunting estimate, 2011 and 2016
National Surveys' migratory bird data, and the U.S. Department of
Commerce's County Business Patterns, from which it is estimated that
migratory bird hunters will spend approximately $2.5 billion (2024$) at
small businesses during the 2025-26 migratory bird hunting season. In
summary, this final rule will have a significant beneficial economic
impact on small entities. Without these annual regulations, States
cannot establish migratory bird hunting seasons. A wide range of
businesses and individuals benefit economically from the establishment
of the annual migratory bird hunting regulations. The final regulatory
flexibility analysis can be found in the economic analysis of the
migratory game bird hunting regulations for the 2025-26 season. Copies
of the economic analysis are available upon request from the person
listed above under FOR FURTHER INFORMATION CONTACT or from <a href="https://www.regulations.gov">https://www.regulations.gov</a> at Docket No. FWS-HQ-MB-2024-0127.
Congressional Review Act
Pursuant to subtitle E of the Small Business Regulatory Enforcement
Fairness Act (also known as the Congressional Review Act or CRA, 5
U.S.C. 801 et seq.), OIRA found this action meets the definition at 5
U.S.C. 804(2) because it is likely to result in an annual effect on the
economy of $100 million or more. However, because this final rule
establishes a regulatory program for activity related to hunting and
because hunting seasons are time sensitive, we establish the effective
date of this final rule using the exemption in the CRA at 5 U.S.C.
808(1).
Paperwork Reduction Act (44 U.S.C. 3501 et seq.)
This final rule does not contain any new collection of information
that requires approval by OMB under the Paperwork Reduction Act of 1995
(44 U.S.C. 3501 et seq.). OMB has previously approved the information
collection requirements associated with migratory bird surveys and the
procedures for establishing annual migratory bird hunting seasons under
the following OMB control numbers:
<bullet> 1018-0019, ``North American Woodcock Singing Ground
Survey'' (expires 02/28/2027).
<bullet> 1018-0023, ``Migratory Bird Surveys, 50 CFR 20.20''
(expires 05/31/2026). Includes Migratory Bird Harvest Information
Program, Migratory Bird Hunter Surveys, Sandhill Crane Survey, and
Parts Collection Survey.
<bullet> 1018-0171, ``Establishment of Annual Migratory Bird
Hunting Seasons, 50 CFR part 20'' (expires 10/30/2027).
You may view the information collection request(s) at <a href="https://www.reginfo.gov/public/do/PRAMain">https://www.reginfo.gov/public/do/PRAMain</a>. An agency may not conduct or
sponsor, and a person is not required to respond to, a collection of
information unless it displays a currently valid OMB control number.
Unfunded Mandates Reform Act (2 U.S.C. 1501 et seq.)
We have determined and certify, in compliance with the requirements
of the Unfunded Mandates Reform Act (2 U.S.C. 1501 et seq.) that this
final rulemaking does not include any Federal mandate that may result
in the expenditure by State, local, and Tribal governments, in the
aggregate, or by the private sector, of $100 million or more (adjusted
for inflation) in any 1 year and does not significantly or uniquely
affect small governments.
Civil Justice Reform--E.O. 12988
The Department, in promulgating this final rule, has determined
that this rule will not unduly burden the judicial system and that it
meets the requirements of sections 3(a) and 3(b)(2) of E.O. 12988.
Takings Implication Assessment--E.O. 12630
In accordance with E.O. 12630, this final rule, authorized by the
MBTA, does not have significant takings implications and does not
affect any constitutionally protected property rights. This final rule
would not result in the physical occupancy of property, the physical
invasion of property, or the regulatory taking of any property. In
fact, this final rule would allow hunters to exercise otherwise
unavailable privileges and, therefore, reduces restrictions on the use
of private and public property.
Energy Effects--E.O. 13211
E.O. 13211 requires agencies to prepare statements of energy
effects when undertaking certain actions. While this final rule is a
significant regulatory action under E.O. 12866, it is not likely to
have a significant adverse effect on the supply, distribution, or use
of energy and has not been designated by OIRA as a significant energy
action. Therefore, no statement of energy effects is required.
Government-to-Government Relationship With Tribes
In accordance with the President's memorandum of April 29, 1994,
``Government-to-Government Relations with Native American Tribal
Governments'' (59 FR 22951), E.O. 13175, and 512 DM 2, we have
evaluated possible effects on federally recognized Indian Tribes with
respect to impacts to Tribes' treaty rights to hunt waterfowl. We have
determined that there are de minimis effects on Indian Tribes for that
aspect of their treaty rights. Through the process to establish annual
hunting regulations, we regularly coordinated with Tribes on concerns
related to this final rulemaking action. Tribes have the opportunity to
attend spring and fall flyway meetings, provide comments on Federal
Register publications concerning migratory bird hunting, and, whenever
needed, we hold informal consultations with Tribes regarding trust
resources, trust assets, health, and safety. Also, while streamlining
the migratory bird hunting regulation process, four informational
webinars were held to present the new process to Tribes, giving Tribes
the opportunity to provide input and to ask questions about the Tribal
migratory bird hunting regulations. This final rule would not have
substantial direct effects on one or more Indian Tribes, on the
relationship between the Federal Government and Indian Tribes, or on
the distribution of power and responsibilities between the Federal
Government and Indian Tribes.
This final rule is general in nature and does not directly affect
any specific Tribal lands, treaty rights, or Tribal trust resources. In
addition, this final rule does not interfere with the ability of Tribes
to manage themselves or their funds or to regulate migratory bird
activities on Tribal lands. Therefore, we conclude that this final rule
does not have ``Tribal implications'' under section 1(a) of E.O. 13175
with respect to waterfowl treaty rights. Thus, formal government-to-
government consultation is not required by E.O. 13175 and related
policies of the Department of the
[[Page 40194]]
Interior. We will continue to collaborate with Tribes on concerns
related to migratory bird hunting regulations.
Federalism Effects--E.O. 13132
Due to the migratory nature of certain species of birds, the
Federal Government has been given responsibility over these species by
the MBTA. We annually prescribe frameworks from which the States make
selections regarding the hunting of migratory birds, and we employ
guidelines to establish special regulations on Federal Indian
reservations and ceded lands. This process preserves the ability of the
States and Tribes to determine which seasons meet their individual
needs.
Any State or Tribe may be more restrictive in its regulations than
the Federal frameworks at any time. The frameworks are developed in a
cooperative process with the States and the Flyway Councils. This
process allows States to participate in the development of frameworks
from which they will make selections, thereby having an influence on
their own regulations. This final rule would not have substantial
direct effects 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 E.O. 13132, these regulations do not have federalism
implications and do not warrant the preparation of a federalism summary
impact statement.
Regulations Promulgation
The rulemaking process for migratory game bird hunting, by its
nature, operates under a time constraint as seasons must be established
each year or hunting seasons remain closed. However, we have provided
the public with extensive opportunity for public input and involvement
in compliance with Administrative Procedure Act requirements. Thus,
when the preliminary proposed rulemaking was published, we established
what we concluded were the longest periods possible for public comment
and the most opportunities for public involvement. We also provided
notification of our participation in multiple Flyway Council meetings,
opportunities for additional public review and comment on all Flyway
Council proposals for regulatory change, and opportunities for
additional public review during the SRC meeting. Therefore, sufficient
public notice and opportunity for involvement have been given to
affected persons regarding the migratory bird hunting frameworks for
the 2025-26 hunting season. Further, after establishment of the final
frameworks, States need sufficient time to conduct their own public
processes to select season dates and limits, to communicate those
selections to us, and to establish and publicize the necessary
regulations and procedures to implement their decisions. Thus, if there
were a delay in the effective date of these regulations after this
final rulemaking, States might not be able to meet their own
administrative needs and requirements.
For the reasons cited above, we find that ``good cause'' exists,
pursuant to 5 U.S.C. 553(d)(3) of the Administrative Procedure Act, and
these frameworks will take effect immediately upon publication.
Therefore, under authority of the MBTA, as amended (16 U.S.C. 703-
711), we prescribe final frameworks setting forth the species to be
hunted, the daily bag and possession limits, the shooting hours, the
season lengths, the earliest opening and latest closing season dates,
and hunting areas, from which State conservation agency officials will
select hunting season dates and other options. Upon receipt of season
selections from these officials, we will publish a final rulemaking
amending 50 CFR part 20 to reflect seasons, limits, and shooting hours
for the United States for the 2025-26 seasons.
List of Subjects in 50 CFR Part 20
Exports, Hunting, Imports, Reporting and recordkeeping
requirements, Transportation, Wildlife.
Authority
The rules that eventually will be promulgated for the 2025-26
hunting season are authorized under 16 U.S.C. 703-712 and 742 a-j.
Final Regulatory Frameworks for 2025-26 Hunting Seasons on Certain
Migratory Game Birds
Pursuant to the Migratory Bird Treaty Act and delegated
authorities, the Department of the Interior is establishing the
following frameworks for outside dates, season lengths, shooting hours,
bag and possession limits, and areas within which States may select
seasons for hunting migratory game birds between the dates of September
1, 2025, and March 10, 2026. These frameworks are summarized below.
General
Outside Dates: Outside dates are the earliest and latest dates
within which States may establish hunting seasons. All outside dates
specified below are inclusive.
Season Lengths: Season lengths are the maximum number of days
hunting may occur within the outside dates for hunting seasons. Days
are consecutive and concurrent for all species included in each season
framework unless otherwise specified.
Season Segments: Season segments are the maximum number of
consecutive-day segments into which the season lengths may be divided.
The sum of the hunting days for all season segments may not exceed the
season lengths allowed.
Zones: Unless otherwise specified, States may select hunting
seasons by zones. Zones for duck seasons (and associated youth and
veterans--active military waterfowl hunting days, gallinule seasons,
and snipe seasons) and dove seasons may be selected only in years we
declare such changes may be made (i.e., open seasons for zones and
splits) and according to federally established guidelines for duck and
dove zones and split seasons.
Area, Zone, and Unit Descriptions: Areas open to hunting must be
described, delineated, and designated as such in each State's hunting
regulations, and, except for early teal seasons, these areas must also
be published in the Federal Register as a Federal migratory bird
hunting frameworks final rule. Geographic descriptions related to
regulations are contained in a later portion of this document.
Shooting and Hawking (taking by falconry) Hours: Unless otherwise
specified, from one-half hour before sunrise to sunset daily.
Possession Limits: Unless otherwise specified, possession limits
are three times the daily bag limits.
Permits: For some species of migratory birds, the Service
authorizes the use of permits to regulate harvest or monitor their take
by hunters, or both. In such cases, the Service determines the amount
of harvest that may be taken during hunting seasons during its formal
regulations-setting process, and the States then issue permits to
hunters at levels predicted to result in the amount of take authorized
by the Service. Thus, although issued by States, the permits will not
be valid unless the Service approved such take in its regulations.
These federally authorized, State-issued permits are issued to
individuals, and only the individual whose name and address appears on
the permit at the time of issuance is authorized to take migratory
birds at levels specified in the permit, in accordance with provisions
of
[[Page 40195]]
both Federal and State regulations governing the hunting season. The
permit must be carried by the permittee when exercising its provisions
and must be presented to any law enforcement officer upon request. The
permit is not transferrable or assignable to another individual, and
may not be sold, bartered, traded, or otherwise provided to another
person. If the permit is altered or defaced in any way, the permit
becomes invalid.
Flyways and Management Units
We generally set migratory bird hunting frameworks for the
conterminous United States by Flyway or Management Unit/Region.
Frameworks for Alaska, Hawaii, Puerto Rico, and the Virgin Islands are
contained in separate sections near the end of the frameworks portion
of this document. The States included in the Flyways and Management
Units/Regions are described below.
Waterfowl Flyways
Atlantic Flyway: Includes Connecticut, Delaware, Florida, Georgia,
Maine, Maryland, Massachusetts, New Hampshire, New Jersey, New York,
North Carolina, Pennsylvania, Rhode Island, South Carolina, Vermont,
Virginia, and West Virginia.
Mississippi Flyway: Includes Alabama, Arkansas, Illinois, Indiana,
Iowa, Kentucky, Louisiana, Michigan, Minnesota, Mississippi, Missouri,
Ohio, Tennessee, and Wisconsin.
Central Flyway: Includes Colorado (east of the Continental Divide),
Kansas, Montana (Counties of Blaine, Carbon, Fergus, Judith Basin,
Stillwater, Sweetgrass, Wheatland, and all counties east thereof),
Nebraska, New Mexico (east of the Continental Divide except the
Jicarilla Apache Indian Reservation), North Dakota, Oklahoma, South
Dakota, Texas, and Wyoming (east of the Continental Divide).
Pacific Flyway: Includes Arizona, California, Idaho, Nevada,
Oregon, Utah, Washington, and those portions of Colorado, Montana, New
Mexico, and Wyoming not included in the Central Flyway.
Mallard Management Units
High Plains Management Unit: Roughly defined as that portion of the
Central Flyway that lies west of the 100th meridian. See Area, Unit,
and Zone Descriptions, Ducks (Including Mergansers) and Coots, below,
for specific boundaries in each State.
Columbia Basin Management Unit: In Washington, all areas east of
the Pacific Crest Trail and east of the Big White Salmon River in
Klickitat County; and in Oregon, the counties of Gilliam, Morrow, and
Umatilla.
Mourning Dove Management Units
Eastern Management Unit: All States east of the Mississippi River,
and Louisiana.
Central Management Unit: Arkansas, Colorado, Iowa, Kansas,
Minnesota, Missouri, Montana, Nebraska, New Mexico, North Dakota,
Oklahoma, South Dakota, Texas, and Wyoming.
Western Management Unit: Arizona, California, Idaho, Nevada,
Oregon, Utah, and Washington.
Woodcock Management Regions
Eastern Management Region: Connecticut, Delaware, Florida, Georgia,
Maine, Maryland, Massachusetts, New Hampshire, New Jersey, New York,
North Carolina, Pennsylvania, Rhode Island, South Carolina, Vermont,
Virginia, and West Virginia.
Central Management Region: Alabama, Arkansas, Illinois, Indiana,
Iowa, Kansas, Kentucky, Louisiana, Michigan, Minnesota, Mississippi,
Missouri, Nebraska, North Dakota, Ohio, Oklahoma, South Dakota,
Tennessee, Texas, and Wisconsin.
Definitions
For the purpose of the hunting season frameworks listed below, the
collective terms ``dark'' and ``light'' geese include the following
species:
Dark geese: Canada geese, cackling geese, white-fronted geese,
brant (except in Alaska, California, Oregon, Washington, and the
Atlantic Flyway), and all other goose species except light geese.
Light geese: Snow (including blue) geese and Ross's geese.
Migratory Game Bird Seasons in the Atlantic Flyway
In the Atlantic Flyway States of Connecticut, Maine, Maryland,
Massachusetts, New Jersey, North Carolina, and Pennsylvania, if Sunday
hunting of migratory birds is prohibited statewide by State law or
regulation, all Sundays are closed to the take of all migratory game
birds. For these States where Sunday hunting is prohibited statewide by
State law or regulation, the State may extend their hunting season
length beyond the framework season length for any migratory game bird
by one day for each Sunday included in the State's regular hunting
season. Total season days must be within the season framework outside
dates; season days must be consecutive except as provided in framework
split-season provisions; and total season length (including extended
falconry and other special seasons) must not exceed 107 days.
Season Frameworks
Special Youth and Veterans--Active Military Personnel Waterfowl Hunting
Days
Outside Dates and Season Lengths: States may select 2 days per
duck-hunting zone, designated as ``Youth Waterfowl Hunting Days,'' and
2 days per duck-hunting zone, designated as ``Veterans and Active
Military Personnel Waterfowl Hunting Days,'' in addition to their
regular duck seasons. The days may be held concurrently or may be
nonconsecutive. The Youth Waterfowl Hunting Days must be held outside
any regular duck season on weekends, holidays, or other non-school days
when youth hunters have the maximum opportunity to participate. Both
sets of days may be held up to 14 days before or after any regular
duck-season frameworks or within any split of a regular duck season, or
within any other open season on migratory birds.
Daily Bag Limits: The daily bag limits may include ducks, geese,
swans, mergansers, coots, and gallinules. Bag limits are the same as
those allowed in the regular season except in States that implement a
hybrid season for scaup (i.e., different bag limits during different
portions of the season), in which case the bag limit will be 2 scaup
per day. Flyway species and area restrictions remain in effect.
Participation Restrictions for Youth Waterfowl Hunting Days: States
may use their established definition of age for youth hunters. However,
youth hunters must be under the age of 18. In addition, an adult at
least 18 years of age must accompany the youth hunter into the field.
This adult may not duck hunt but may participate in other seasons that
are open on the special youth day. Swans may be taken only by
participants possessing applicable swan permits.
Participation Restrictions for Veterans and Active Military
Personnel Waterfowl Hunting Days: Veterans (as defined in section 101
of title 38, United States Code) and members of the Armed Forces on
active duty, including members of the National Guard and Reserves on
active duty (other than for training), may participate. Swans may be
taken only by participants possessing applicable swan permits.
Special Early Teal Seasons
Areas:
Atlantic Flyway: Delaware, Florida, Georgia, Maryland, North
Carolina, South Carolina, and Virginia.
Mississippi Flyway: Alabama, Arkansas, Illinois, Indiana, Iowa,
[[Page 40196]]
Kentucky, Louisiana, Michigan, Minnesota, Mississippi, Missouri, Ohio,
Tennessee, and Wisconsin.
Central Flyway: Colorado (part), Kansas, Nebraska, New Mexico
(part), Oklahoma, and Texas.
Outside Dates: September 1-30.
Season Lengths: 9 days.
Daily Bag Limits: 6 teal.
Shooting Hours: One-half hour before sunrise to sunset, except in
the States of Arkansas, Illinois, Indiana, Iowa, Michigan, Minnesota,
Missouri, Ohio, South Carolina, and Wisconsin, where the hours are from
sunrise to sunset.
Special Early Teal-Wood Duck Seasons
Areas: Florida, Kentucky, and Tennessee.
Seasons: In lieu of a special early teal season, a 5-consecutive-
day teal-wood duck season may be selected in September. The daily bag
limit may not exceed 6 teal and wood ducks in the aggregate, of which
no more than 2 may be wood ducks.
Duck, Merganser, Coot, and Goose Seasons
Atlantic Flyway
Duck, Merganser, and Coot Seasons
Outside Dates: Saturday nearest September 24 (September 27)-January
31.
Season Lengths and Daily Bag Limits: 60 days. The daily bag limit
is 6 ducks, including no more than 4 mallards (no more than 2 of which
may be female), 2 black ducks, 3 pintails, 1 mottled duck, 1 fulvous
whistling duck, 3 wood ducks, 2 redheads, 2 canvasbacks, and 4 sea
ducks (including no more than 3 scoters, 3 long-tailed ducks, or 3
eiders and no more than 1 female eider). The season for scaup may be
split into 2 segments, with one segment consisting of 40 consecutive
days with a 1-scaup daily bag limit, and the second segment consisting
of 20 consecutive days with a 2-scaup daily bag limit. The daily bag
limit of mergansers is 5. In States that include mergansers in the duck
bag limit, the daily limit is the same as the duck bag limit. The daily
bag limit of coots is 15.
Closed Seasons: There is no open season on the harlequin duck.
Zones and Split Seasons: Delaware, Florida, Georgia, Rhode Island,
South Carolina, and West Virginia may split their seasons into 3
segments. Maine, Massachusetts, New Hampshire, New Jersey, and Vermont
may select seasons in each of 3 zones; Pennsylvania may select seasons
in each of 4 zones; New York may select seasons in each of 5 zones; and
all these States may split their season in each zone into 2 segments.
Connecticut, Maryland, North Carolina, and Virginia may select seasons
in each of 2 zones, and all of these States may split their season in
each zone into 3 segments. Connecticut, Maryland, North Carolina, and
Virginia must conduct an evaluation of the impacts of zones and splits
on hunter dynamics (e.g., hunter numbers, satisfaction) and harvest
during the 2021-25 seasons.
Other Provisions: The seasons, limits, and shooting hours should be
the same between New York's Lake Champlain Zone and Vermont's Lake
Champlain Zone, and between Vermont's Connecticut River Zone and New
Hampshire's Inland Zone.
A craft under power may be used to shoot and retrieve dead or
crippled birds in the Special Sea Duck Area in the Atlantic Flyway. The
Special Sea Duck Area includes all coastal waters and all waters of
rivers and streams seaward from the first upstream bridge in Maine, New
Hampshire, Massachusetts, Rhode Island, Connecticut, and New York; in
New Jersey, all coastal waters seaward from the International
Regulations for Preventing Collisions at Sea (COLREGS) Demarcation
Lines shown on National Oceanic and Atmospheric Administration (NOAA)
Nautical Charts and further described in 33 CFR 80.165, 80.501, 80.502,
and 80.503; in any waters of the Atlantic Ocean and in any tidal waters
of any bay that are separated by at least 1 mile of open water from any
shore, island, and emergent vegetation in South Carolina and Georgia;
and in any waters of the Atlantic Ocean and in any tidal waters of any
bay that are separated by at least 800 yards of open water from any
shore, island, and emergent vegetation in Delaware and North Carolina.
In Virginia, the Special Sea Duck Area includes all ocean waters of
Virginia, the tidal waters of Northampton and Accomack Counties up to
the first highway bridge, and the Chesapeake Bay and each of its
tributaries up to the first highway bridge; Back Bay and its
tributaries are not included. In Maryland, the Special Sea Duck Area
includes portions of the waters of the Atlantic Ocean and the
Chesapeake Bay and its tributaries. The Special Sea Duck Area in each
State must be described, delineated, and designated as such in each
State's hunting regulations.
Special Early Canada and Cackling Goose Seasons
Outside Dates and Season Lengths: 15 days during September 1-15 in
the Eastern Unit of Maryland; 30 days during September 1-30 in
Connecticut, Florida, Georgia, New Jersey, Long Island Zone of New
York, North Carolina, Rhode Island, and South Carolina; and 25 days
during September 1-25 in the remainder of the Atlantic Flyway.
Daily Bag Limits: 15 geese in the aggregate.
Shooting Hours: One-half hour before sunrise to sunset, except that
during any special early Canada and cackling goose season, shooting
hours may extend to one-half hour after sunset if all other waterfowl
seasons are closed in the specific applicable area.
Dark Goose Seasons
Outside Dates, Season Lengths, and Daily Bag Limits: Regulations
are State and zone specific as provided below.
----------------------------------------------------------------------------------------------------------------
Season Daily bag Season
Area Outside dates length limit segments
----------------------------------------------------------------------------------------------------------------
Connecticut:
Atlantic Population (AP) Zone......... Oct 10-Feb 5................. 30 1 2
AP Zone Late Season Area (Special Dec 15-Feb 15................ 54 5 1
season).
North Atlantic Population (NAP) Zone.. Oct 1-Jan 31................. 60 2 2
NAP Late Season Area (Special season). Jan 15-Feb 15................ 28 5 1
Resident Population (RP) Zone......... Oct 1-Feb 15................. 80 5 3
Delaware.................................. Nov 15-Feb 5................. 30 1 2
Florida................................... Oct 1-Mar 10................. 80 5 3
Georgia................................... Oct 1-Mar 10................. 80 5 3
Maine:
North NAP High Harvest Zone........... Oct 1-Jan 31................. 60 2 2
South NAP High Harvest Zone........... Oct 1-Jan 31................. 60 2 2
[[Page 40197]]
Coastal NAP Low Harvest Zone.......... Oct 1-Feb 15................. 70 3 2
Maryland:
AP Zone............................... Nov 15-Feb 5................. 30 1 2
RP Zone............................... Nov 15-Mar 10................ 80 5 3
Massachusetts:
AP Zone............................... Oct 10-Feb 5................. 30 1 2
AP Zone Late Season Area (Special Dec 15-Feb 15................ 54 5 1
season).
NAP Zone.............................. Oct 1-Jan 31................. 60 2 2
NAP Late Season Area (Special season). Jan 15-Feb 15................ 28 5 1
New Hampshire............................. Oct 1-Jan 31................. 60 2 2
New Jersey:
AP Zone............................... Fourth Saturday in Oct (25)- 30 1 2
Feb 5.
NAP Zone.............................. Oct 1-Jan 31................. 60 2 2
Special Late Season Area (Special Jan 15-Feb 15................ 28 5 1
season).
New York:
AP Zone............................... Fourth Saturday in Oct (25)- 30 1 2
Feb 5.
AP (Lake Champlain) Zone.............. Oct 10-Feb 5................. 30 1 2
NAP High Harvest Zone................. Oct 1-Jan 31................. 60 2 2
NAP Low Harvest Zone.................. Oct 1-Feb 15................. 70 3 2
Western Long Island RP Zone........... Saturday nearest Sep 24 (27)- 107 8 3
last day of Feb (28).
Remainder of RP Zone.................. Fourth Saturday in Oct (25)- 80 5 3
last day of Feb (28).
AP (Lake Champlain) Zone Late Season Dec 1-Feb 15................. 77 5 1
(Special season).
North Carolina:
Northeast Zone........................ Saturday prior to Dec 25 (20)- 30 1 1
Jan 31.
RP Zone............................... Oct 1-Mar 10................. 80 5 3
Pennsylvania:
AP Zone............................... Fourth Saturday in Oct (25)- 30 1 2
Feb 5.
RP Zone............................... Fourth Saturday in Oct (25)- 80 5 3
Mar 10.
Rhode Island:
Statewide............................. Oct 1-Jan 31................. 60 2 2
Late Season Area (Special season)..... Jan 15-Feb 15................ 32 5 2
South Carolina............................ Oct 1-Mar 10................. 80 5 3
Vermont:
Connecticut River Zone................ Oct 1-Jan 31................. 60 2 2
Interior Zone......................... Oct 10-Feb 5................. 30 1 2
Lake Champlain Zone................... Oct 10-Feb 5................. 30 1 2
Interior, and Lake Champlain Zones Dec 1-Feb 15................. 77 5 1
Late Season (Special Season).
Virginia:
AP Zone............................... Nov 15-Feb 5................. 30 1 2
RP Zone............................... Nov 15-Mar 10................ 80 5 3
West Virginia............................. Oct 1-Mar 10................. 80 5 3
----------------------------------------------------------------------------------------------------------------
Light Goose Seasons
Outside Dates: October 1-March 10.
Season Lengths: 107 days. Seasons may be split into 3 segments.
Daily Bag limits: 25 light geese. There is no possession limit.
Brant Seasons
Outside Dates: Saturday nearest September 24 (September 27)-January
31.
Season Lengths: 30 days. Seasons may be split into 2 segments.
Daily Bag Limits: 1 brant.
Mississippi Flyway
Duck, Merganser, and Coot Seasons
Outside Dates: Saturday nearest September 24 (September 27)-January
31.
Season Lengths and Daily Bag Limits: 60 days. The daily bag limit
is 6 ducks, including no more than 4 mallards (no more than 2 of which
may be females), 1 mottled duck, 2 black ducks, 3 pintails, 3 wood
ducks, 2 canvasbacks, and 2 redheads. In Louisiana (the only high-
harvest State in the Mississippi Flyway for mottled ducks), the daily
bag limit for mottled ducks is zero for the first 15 days. The season
for scaup may be split into 2 segments, with one segment consisting of
45 days with a 2-scaup daily bag limit, and the second segment
consisting of 15 days with a 1-scaup daily bag limit. The daily bag
limit of mergansers is 5, only 2 of which may be hooded mergansers. In
States that include mergansers in the duck bag limit, the daily limit
is the same as the duck bag limit, only 2 of which may be hooded
mergansers. The daily bag limit of coots is 15.
Zones and Split Seasons: Alabama, Arkansas, and Mississippi may
split their seasons into 3 segments. Kentucky and Tennessee may select
seasons in each of 2 zones; Indiana, Iowa, Michigan, Minnesota,
Missouri, Ohio, and Wisconsin may select seasons in each of 3 zones;
and all these States may split their season in each zone into 2
segments. Illinois may select seasons in each of 4 zones. Louisiana may
select seasons in each of 2 zones and may split their season in each
zone into 3 segments. Louisiana must conduct an evaluation of the
impacts of zones and splits on hunter dynamics (e.g., hunter numbers,
satisfaction) and harvest during the 2021-25 seasons.
[[Page 40198]]
Canada and Cackling Goose Seasons
Outside Dates: September 1-February 15.
Season Lengths: 107 days, which may be split into 4 segments.
Daily Bag Limits: 5 geese in the aggregate.
Shooting Hours: One-half hour before sunrise to sunset, except that
during September 1-15 shooting hours may extend to one-half hour after
sunset for Canada and cackling geese if all other waterfowl and crane
seasons are closed in the specific applicable area.
White-Fronted Goose Seasons
Outside Dates: September 1-February 15.
Season Lengths and Daily Bag Limits: 74 days with a daily bag limit
of 3 geese, 88 days with a daily bag limit of 2 geese, or 107 days with
a daily bag limit of 1 goose. Seasons may be split into 4 segments.
Brant Seasons
Outside Dates: September 1-February 15.
Season Lengths and Daily Bag Limits: 70 days with a daily bag limit
of 2 brant or 107 days with a daily bag limit of 1 brant. Seasons may
be split into 4 segments.
Other Provisions: In lieu of a separate brant season, brant may be
included in the season for Canada and cackling geese with a daily bag
limit of 5 geese in the aggregate.
Dark Goose Seasons
Areas: Alabama, Iowa, Indiana, Michigan, Minnesota, Ohio, and
Wisconsin in lieu of separate seasons for Canada and cackling geese,
white-fronted geese, and brant.
Outside Dates: September 1-February 15.
Season Lengths: 107 days, which may be split into 4 segments.
Daily Bag Limits: 5 geese in the aggregate.
Light Goose Seasons
Outside Dates: September 1-February 15.
Season Lengths: 107 days, which may be split into 4 segments.
Daily Bag and Possession Limits: The daily bag limit is 20 geese.
There is no possession limit for light geese.
Central Flyway
Ducks, Merganser, and Coot Seasons
Outside Dates: Saturday nearest September 24 (September 27)-January
31.
Season Lengths and Duck Daily Bag Limits: 74 days, except in the
High Plains Mallard Management Unit where the season length is 97 days
and the last 23 days must be consecutive and may start no earlier than
the Saturday nearest December 10 (December 13). The daily bag limit is
6 ducks and mergansers in the aggregate, including no more than 5
mallards (no more than 2 of which may be females), 2 redheads, 3 wood
ducks, 3 pintails, 1 scaup, and 2 canvasbacks. In Texas, the daily bag
limit on mottled ducks is 1, except that no mottled ducks may be taken
during the first 5 days of the season. In addition to the daily limits
listed above, the States of Montana, North Dakota, South Dakota, and
Wyoming, in lieu of selecting an experimental September teal season,
may include an additional daily bag and possession limit of 2 and 6
blue-winged teal, respectively, during the first 9 days of the regular
duck season in each respective duck hunting zone. These extra limits
are in addition to the regular duck bag and possession limits.
Coot Daily Bag Limits: 15 coots.
Zones and Split Seasons: Colorado, Kansas (Low Plains portion),
Montana, Nebraska, New Mexico, Oklahoma (Low Plains portion), South
Dakota (Low Plains portion), Texas (Low Plains portion), and Wyoming
may select hunting seasons by zones.
North Dakota may split their season into 3 segments. Montana, New
Mexico, Oklahoma, and Texas may select seasons in each of 2 zones;
Colorado, Kansas, South Dakota, and Wyoming may select seasons in each
of 3 zones; and all these States may split their season in each zone
into 2 segments. Nebraska may select seasons in each of 4 zones.
Special Early Canada and Cackling Goose Seasons
Outside Dates and Seasons Lengths: In Kansas, Nebraska, Oklahoma,
South Dakota, and Texas, 30 days between September 1-30; in Colorado,
New Mexico, Montana, and Wyoming, Canada and cackling goose seasons of
not more than 15 days between September 1-15; and in North Dakota, 22
days between September 1-22.
Daily Bag Limits: 5 geese in the aggregate in Colorado, New Mexico,
Montana, Wyoming, and Texas; 8 geese in the aggregate in Kansas,
Nebraska, and Oklahoma; and 15 geese in the aggregate in North Dakota
and South Dakota.
Shooting Hours: One-half hour before sunrise to sunset, except that
during September 1-15 shooting hours may extend to one-half hour after
sunset if all other waterfowl and crane seasons are closed in the
specific applicable area.
Canada Goose, Cackling Goose, and Brant Seasons
Outside Dates: Saturday nearest September 24 (September 27)-the
Sunday nearest February 15 (February 15).
Seasons and Daily Bag Limits: In Kansas, Nebraska, North Dakota,
Oklahoma, South Dakota, and the Eastern Goose Zone of Texas, 107 days
with a daily bag limit of 8 geese; in Colorado, Montana, New Mexico,
and Wyoming, 107 days with a daily bag limit of 5 geese; and in Texas
(Western Goose Zone), 95 days with a daily bag limit of 5 geese.
Split Seasons: Seasons may be split into 3 segments. Three-segment
seasons require Central Flyway Council and U.S. Fish and Wildlife
Service approval, and a 3-year evaluation by each participating State.
White-Fronted Goose Seasons
Outside Dates: Saturday nearest September 24 (September 27)-the
Sunday nearest February 15 (February 15).
Season Length and Daily Bag Limits:
East-tier States (Kansas, Nebraska, North Dakota, Oklahoma, South
Dakota, and Texas except for the Western Goose Zone): Either 74 days
with a daily bag limit of 3 geese, or 88 days with a daily bag limit of
2 geese, or 107 days with a daily bag limit of 1 goose.
West-tier States (Colorado, Montana, New Mexico, Wyoming, and the
Western Goose Zone of Texas): 107 days, except 95 days in the Western
Goose Zone of Texas. The daily bag limit is 5 dark geese in the
aggregate.
Split Seasons: Seasons may be split into 3 segments. Three-segment
seasons require Central Flyway Council and U.S. Fish and Wildlife
Service approval, and a 3-year evaluation by each participating State.
Light Goose Seasons
Outside Dates: Saturday nearest September 24 (September 27)-March
10.
Season Lengths: 107 days. Seasons may be split into 3 segments.
Daily Bag and Possession Limits: The daily bag limit is 50 with no
possession limit.
Other Provisions: In the Rainwater Basin Light Goose Area (East and
West) of Nebraska, temporal and spatial restrictions that are
consistent with the late-winter snow goose hunting strategy
cooperatively developed by the Central Flyway Council and the Service
are required.
[[Page 40199]]
Pacific Flyway
Duck, Merganser, Coot, and Gallinule Seasons
Outside Dates: Saturday nearest September 24 (September 27)-January
31.
Season Lengths and Daily Bag Limits: 107 days. The daily bag limit
is 7 ducks and mergansers in the aggregate, including no more than 2
female mallards, 3 pintails, 2 canvasbacks, 2 scaup, and 2 redheads.
For scaup, the season length is 86 days, which may be split according
to applicable zones and split duck hunting configurations approved for
each State. The daily bag limit of coots and gallinules is 25 in the
aggregate.
Zones and Split Seasons: Montana and New Mexico may split their
seasons into 3 segments. Arizona, Colorado, Oregon, Utah, Washington,
and Wyoming may select seasons in each of 2 zones; Nevada may select
seasons in each of 3 zones; California may select seasons in each of 5
zones; and all these States may split their season in each zone into 2
segments. Idaho may select seasons in each of 4 zones.
Other Provisions: The seasons, limits, and shooting hours should be
the same between the Colorado River Zone of California and the South
Zone of Arizona.
Goose Seasons
Special Early Canada and Cackling Goose Seasons
Outside Dates: September 1-20.
Season Lengths: 15 days.
Daily Bag Limits: 5 geese in the aggregate, except in Pacific
County, Washington, where the daily bag limit is 15 geese in the
aggregate.
Canada Goose, Cackling Goose, and Brant Seasons
Outside Dates: Except as subsequently provided, Saturday nearest
September 24 (September 27)-February 15.
Season Lengths: Except as subsequently provided, 107 days.
Daily Bag Limits: Except as subsequently provided, in Arizona,
Colorado, Idaho, Montana, Nevada, New Mexico, Utah, and Wyoming, the
daily bag limit is 5 Canada and cackling geese and brant in the
aggregate. In Oregon and Washington, the daily bag limit is 4 Canada
and cackling geese in the aggregate. In California, the daily bag limit
is 10 Canada and cackling geese in the aggregate.
Split Seasons: Seasons may be split into 3 segments. Three-segment
seasons require Pacific Flyway Council and U.S. Fish and Wildlife
Service approval and a 3-year evaluation by each participating State.
Other provisions:
California: In the Balance of State Zone, outside dates are
Saturday nearest September 24 (September 27) and March 10. The season
may be split into 3 segments. In the Balance of State Zone, North Coast
Special Management Area, hunting days that occur after January 31
should be concurrent with Oregon's South Coast Zone.
Oregon: In the Northwest Permit Zone, the season length is 74 days.
The daily bag limit is 2 Canada and cackling geese in the aggregate.
The season may be split into 3 segments. In the South Coast Zone,
outside dates are the Saturday nearest September 24 (September 27) and
March 10. The daily bag limit is 6 Canada and cackling geese in the
aggregate. The season may be split into 3 segments. Hunting days that
occur after January 31 should be concurrent with California's Balance
of State Zone, North Coast Special Management Area.
Washington: In Areas 2 Inland and 2 Coastal (Southwest Permit
Zone), the season length is 74 days. The daily bag limit is 2 Canada
and cackling geese in the aggregate. In Areas 1 and 3, the daily bag
limit is 3 Canada and cackling geese in the aggregate. The season may
be split into 3 segments. In Area 4, the season may be split into 3
segments.
Permit Zones: In Oregon and Washington permit zones, the hunting
season is closed on dusky Canada geese. A dusky Canada goose is any
dark-breasted Canada goose (Munsell 10 YR color value 5 or less) with a
bill length between 40 and 50 millimeters. Hunting is by State-issued
permit only. Shooting hours for geese may begin no earlier than
sunrise. Regular Canada and cackling goose seasons in the permit zones
of Oregon and Washington remain subject to the Memorandum of
Understanding entered into with the Service regarding monitoring the
impacts of take during the regular Canada and cackling goose season on
the dusky Canada goose population.
Brant Seasons
Areas: California, Oregon, and Washington.
Outside Dates: Saturday nearest September 24 (September 27)-January
31.
Season Lengths and Daily Bag Limits: 19 days and 2 brant.
Zones: Washington and California may select seasons in each of 2
zones.
Other Provisions: In Oregon and California, the brant season must
end no later than December 15.
White-Fronted Goose Seasons
Outside Dates: Saturday nearest September 24 (September 27)-March
10.
Season Lengths: 107 days.
Daily Bag Limits: Except as subsequently provided, 10 geese.
Split Seasons: Seasons may be split into 3 segments. Three-segment
seasons require Pacific Flyway Council and U.S. Fish and Wildlife
Service approval and a 3-year evaluation by each participating State.
Other Provisions:
California: In the Balance of State Zone, Sacramento Valley Special
Management Area, the season must end on or before December 28, and the
daily bag limit is 3 white-fronted geese. In the Balance of State Zone,
North Coast Special Management Area, hunting days that occur after
January 31 should be concurrent with Oregon's South Coast Zone. In the
Northeastern Zone, the season may be split into 3 segments.
Oregon: In the Eastern Zone, for Lake County only, the daily bag
limit is 1 white-fronted goose. In the Mid-Columbia Zone, Northwest
Permit Zone, and South Coast Zone, the seasons may be split into 3
segments. In Oregon's South Coast Zone, hunting days that occur after
January 31 should be concurrent with California's Balance of State
Zone, North Coast Special Management Area.
Washington: In Areas 2 Inland and 2 Coastal (Southwest Permit Zone)
and Area 4, seasons may be split into 3 segments.
Light Goose Seasons
Outside Dates: Saturday nearest September 24 (September 27)-March
10.
Season Lengths: 107 days. Seasons may be split into 3 segments.
Daily Bag Limits: 20 geese, except in Washington where the daily
bag limit for light geese is 10 on or before the last Sunday in January
(January 25).
Swan Seasons
Pacific Flyway
Areas: Idaho, Montana, Nevada, and Utah.
Outside Dates: Saturday nearest September 24 (September 27)-January
31.
Season Lengths: 107 days. Seasons may be split into 2 segments.
Permits: Hunting is by State-issued permit only. The total number
of permits issued may not exceed 50 in Idaho, 500 in Montana, 750 in
Nevada, and 2,750 in Utah. Permits will authorize the take of no more
than 1 swan per permit. Only 1 permit may be issued per hunter in
Idaho, Montana, and Utah; 2 permits may be issued per hunter in Nevada.
[[Page 40200]]
Quotas: The swan season in the respective State must end upon
attainment of the following reported harvest of trumpeter swans: 20 in
Utah and 10 in Nevada. There is no quota in Idaho and Montana.
Monitoring: Each State must evaluate hunter participation, species-
specific swan harvest, and hunter compliance in providing either
species-determinant parts (at least the intact head) or bill
measurements (bill length from tip to posterior edge of the nares
opening, and presence or absence of yellow lore spots on the bill in
front of the eyes) of harvested swans for species identification. Each
State should use appropriate measures to maximize hunter compliance
with the State's program for swan harvest reporting. Each State must
achieve a hunter compliance of at least 80 percent in providing
species-determinant parts or bill measurements of harvested swans for
species identification, or subsequent permits will be reduced by 10
percent in the respective State. Each State must provide to the Service
by June 30 following the swan season a report detailing hunter
participation, species-specific swan harvest, and hunter compliance in
reporting harvest. In Idaho and Montana, all hunters that harvest a
swan must complete and submit a reporting card (bill card) with the
bill measurement and color information from the harvested swan within
72 hours of harvest for species determination. In Utah and Nevada, all
hunters that harvest a swan must have the swan or species-determinant
parts examined by a State or Federal biologist within 72 hours of
harvest for species determination.
Other Provisions: In Utah, the season is subject to the terms of
the Memorandum of Agreement entered into with the Service in January
2019 regarding harvest monitoring, season closure procedures, and
education requirements to minimize take of trumpeter swans during the
swan season.
Atlantic and Central Flyways
Areas: Delaware, North Carolina, and Virginia in the Atlantic
Flyway and North Dakota, South Dakota east of the Missouri River, and
part of Montana in the Central Flyway.
Outside Dates: October 1-January 31 in the Atlantic Flyway and the
Saturday nearest October 1 (October 4)-January 31 in the Central
Flyway.
Season Lengths: 90 days in the Atlantic Flyway and 107 days in the
Central Flyway.
Permits: Hunting is by permit only. Permits will be issued by the
States. No more than 5,600 permits may be issued in the Atlantic Flyway
including 272 in Delaware; 4,853 in North Carolina; and 475 in
Virginia. No more than 4,000 permits may be issued in the Central
Flyway including 500 in Montana; 2,200 in North Dakota; and 1,300 in
South Dakota. Permits will authorize the take of no more than 1 swan
per permit. A second permit may be issued to hunters from unissued
permits remaining after the first drawing. Unissued permits may be
reallocated to States within a flyway.
Monitoring: Each State must evaluate hunter participation, species-
specific swan harvest, and hunter compliance in providing measurements
of harvested swans for species identification. Each State should use
appropriate measures to maximize hunter compliance with the State's
program for swan harvest reporting. Each State must achieve a hunter
compliance of at least 80 percent in providing species-determinant
measurements of harvested swans for species identification. Each State
must provide to the Service by June 30 following the swan season a
report detailing hunter participation, species-specific swan harvest,
and hunter compliance in reporting harvest.
Other Provisions: In lieu of a general swan hunting season, States
may select a season only for tundra swans. States selecting a season
only for tundra swans must obtain harvest and hunter participation
data.
Sandhill Crane Seasons
Mississippi Flyway
Areas: Alabama, Kentucky, Minnesota, and Tennessee.
Outside Dates: September 1-February 28 in Minnesota, and September
1-January 31 in Alabama, Kentucky, and Tennessee.
Season Lengths: 37 days in the designated portion of Minnesota's
Northwest Goose Zone, and 60 days in Alabama, Kentucky, and Tennessee.
Daily Bag and Possession Limits: The daily bag limit is 2 cranes in
Minnesota and Kentucky, and 3 cranes in Alabama and Tennessee. In
Alabama, Kentucky, and Tennessee, the seasonal bag limit is 3 cranes.
Permits: Hunting is by State-issued permit only.
Other Provisions: The number of permits, open areas, season dates,
protection plans for other species, and other provisions of seasons
must be consistent with Council management plans and approved by the
Mississippi Flyway Council.
Central Flyway
Areas: Colorado, Kansas, Montana, New Mexico, North Dakota,
Oklahoma, South Dakota, Texas, and Wyoming.
Outside Dates: September 1-February 28.
Season Lengths: 37 days in Texas (Zone C), 58 days in Colorado,
Kansas, Montana, North Dakota, South Dakota, and Wyoming, and 93 days
in New Mexico, Oklahoma, and Texas.
Daily Bag Limits: 3 cranes, except 2 cranes in North Dakota (Area
2) and Texas (Zone C).
Permits: Hunting is by permit only. Permits will be issued by the
States.
Central and Pacific Flyways
Areas: Arizona, Colorado, Idaho, Montana, New Mexico, Utah, and
Wyoming within the range of the Rocky Mountain Population (RMP) of
sandhill cranes.
Outside Dates: September 1-January 31.
Season Lengths: 60 days. The season may be split into 3 segments.
Daily Bag and Possession limits: The daily bag limit is 3 cranes,
and the possession limit is 9 cranes per season.
Permits: Hunting is by State-issued permit only.
Other Provisions: Numbers of permits, open areas, season dates,
protection plans for other species, and other provisions of seasons
must be consistent with Councils' management plan and approved by the
Central and Pacific Flyway Councils, with the following exceptions:
1. In Utah, 100 percent of the harvest will be assigned to the RMP
crane quota;
2. In Arizona, monitoring the species composition of the harvest
must be conducted at 3-year intervals unless 100 percent of the harvest
will be assigned to the RMP crane quota;
3. In Idaho, 100 percent of the harvest will be assigned to the RMP
crane quota; and
4. In the Estancia Valley hunt area of New Mexico, harvest and
species composition must be monitored; greater sandhill cranes in the
harvest will be assigned to the RMP crane quota.
Gallinule Seasons
Atlantic, Mississippi, and Central Flyways
Outside Dates: September 1-January 31.
Season Lengths: 70 days.
Daily Bag Limits: 15 gallinules.
Zones and Split Seasons: Seasons may be selected by zones
established for duck hunting. The season in each zone may be split into
2 segments.
[[Page 40201]]
Pacific Flyway
States in the Pacific Flyway may select their hunting seasons
between the outside dates for the season on ducks, mergansers, and
coots; therefore, Pacific Flyway frameworks for gallinules are included
with the duck, merganser, and coot frameworks.
Rail Seasons
Areas: Atlantic, Mississippi, and Central Flyways and the Pacific
Flyway portions of Colorado, Montana, New Mexico, and Wyoming.
Outside Dates: September 1-January 31.
Season Lengths: 70 days. Seasons may be split into 2 segments.
Daily Bag Limits
Clapper and King Rails: In Connecticut, Delaware, Maryland, New
Jersey, and Rhode Island, 10 rails in the aggregate. In Alabama,
Florida, Georgia, Louisiana, Mississippi, North Carolina, South
Carolina, Texas, and Virginia, 15 rails in the aggregate.
Sora and Virginia Rails: 25 rails in the aggregate.
Snipe Seasons
Outside Dates: September 1-February 28, except in Connecticut,
Delaware, Maine, Maryland, Massachusetts, New Hampshire, New Jersey,
New York, Rhode Island, Vermont, and Virginia, where the season must
end no later than January 31.
Season Lengths: 107 days.
Daily Bag limits: 8 snipe.
Zones and Split Seasons: Seasons may be selected by zones
established for duck seasons. The season in each zone may be split into
2 segments.
American Woodcock Seasons
Areas: Eastern and Central Management Regions.
Outside Dates: September 13-January 31.
Season Lengths: Except as subsequently provided, 45 days.
Daily Bag Limits: 3 woodcock.
Zones and Split Seasons: Seasons may be split into 2 segments. New
Jersey may select seasons in each of 2 zones. The season in each zone
may not exceed 36 days.
Band-Tailed Pigeon Seasons
California, Oregon, Washington, and Nevada
Outside Dates: September 15-January 1.
Seasons Lengths: 9 days.
Daily Bag Limits: 2 pigeons.
Zones: California may select seasons in each of 2 zones. The season
in each zone may not exceed 9 days. The season in the North Zone must
close by October 3.
Arizona, Colorado, New Mexico, and Utah
Outside Dates: September 1-November 30.
Season Lengths: 14 days.
Daily Bag Limits: 2 pigeons.
Zones: New Mexico may select seasons in each of 2 zones. The season
in each zone may not exceed 14 days. The season in the South Zone may
not open until October 1.
Dove Seasons
Eastern Management Unit
Outside Dates: September 1-January 31.
Season Lengths: 90 days.
Daily Bag Limits: 15 mourning and white-winged doves in the
aggregate.
Zones and Split Seasons: Seasons may be split into 3 segments;
Alabama, Louisiana, and Mississippi may select seasons in each of 2
zones and may split their season in each zone into 3 segments.
Central Management Unit
Outside Dates: September 1-January 15.
Season Lengths: 90 days.
All States Except Texas
Daily Bag Limits: 15 mourning and white-winged doves in the
aggregate.
Zones and Split Seasons: Seasons may be split into 3 segments; New
Mexico may select seasons in each of 2 zones and may split their season
in each zone into 3 segments.
Texas
Daily Bag Limits: 15 mourning, white-winged, and white-tipped doves
in the aggregate, of which no more than 2 may be white-tipped doves.
Zones and Split Seasons: Texas may select hunting seasons for each
of 3 zones subject to the following conditions:
1. The season may be split into 2 segments, except in that portion
of Texas in which the special white-winged dove season is allowed,
where a limited take of mourning and white-tipped doves may also occur
during that special season (see Special White-winged Dove Area in
Texas, below).
2. A season may be selected for the North and Central Zones between
September 1 and January 25; and for the South Zone between September 14
and January 25.
Special White-winged Dove Season in Texas
In addition, Texas may select a hunting season of not more than 6
days, which may be split into 3 segments, for the Special White-winged
Dove Area between September 1 and 19. The daily bag limit may not
exceed 15 white-winged, mourning, and white-tipped doves in the
aggregate, of which no more than 2 may be mourning doves and no more
than 2 may be white-tipped doves. Shooting hours are from noon to
sunset.
Western Management Unit
Outside Dates: September 1-January 15.
Season Lengths: 60 days.
Daily Bag Limits: 15 mourning and white-winged doves in the
aggregate.
Zones and Split Seasons: Idaho, Nevada, Utah, and Washington may
split their seasons into 2 segments. Oregon may select hunting seasons
in each of 2 zones and may split their season in each zone into 2
segments. Arizona and California may split their seasons between 2
periods, September 1-15 and November 1-January 15.
Alaska
Duck, Goose, Sandhill Crane, and Snipe Seasons
Outside Dates: Except as subsequently provided, September 1-January
26.
Season Lengths: Except as subsequently provided, 107 days for
ducks, geese, sandhill cranes, and snipe. The season length for brant
is 51 days.
Zones and Split Seasons: A season may be established in each of 5
zones. The season in the Southeast Zone may be split into 2 segments.
Closed Seasons: The hunting season is closed on the emperor goose,
spectacled eider, and Steller's eider.
Daily Bag and Possession Limits and Special Conditions
Ducks: The basic daily bag limit is 7 ducks. The basic daily bag
limit in the North Zone is 10 ducks, and in the Gulf Coast Zone is 8
ducks. The basic daily bag limits may include 2 canvasbacks and may not
include sea ducks.
In addition to the basic daily bag limits, the sea duck daily bag
limit is 10, including 6 each of either harlequin or long-tailed ducks.
Sea ducks include scoters, common and king eiders, harlequin ducks,
long-tailed ducks, and common, hooded, and red-breasted mergansers.
Light Geese: The daily bag limit is 6 geese.
Canada and Cackling Geese: The daily bag limit is 4 Canada and
cackling geese in the aggregate with the following exceptions, and
subject to the following conditions:
1. In Game Management Units (Units) 5 and 6, in the Gulf Coast
Zone, outside dates are September 28-December 16.
[[Page 40202]]
2. On Middleton Island in Unit 6, in the Gulf Coast Zone, all
hunting is by permit only. Each hunter is required to complete a
mandatory Canada and cackling goose identification class prior to being
issued a permit. Hunters must check in and check out when hunting. The
daily bag and possession limits are 1 goose. The season will close if
incidental harvest includes 5 dusky Canada geese. A dusky Canada goose
is any dark-breasted Canada goose (Munsell 10 YR color value 5 or less)
with a bill length between 40 and 50 millimeters.
3. In Unit 10, in the Pribilof and Aleutian Islands Zone, the daily
bag limit is 6 geese in the aggregate.
4. In Unit 9, in the Gulf Coast Zone, and Units 17 and 18, in the
Northern Zone, the daily bag limit is 3 Canada and cackling geese in
the aggregate.
White-fronted Geese: The daily bag limit is 4 geese with the
following exceptions:
1. In Unit 9, in the Gulf Coast Zone, Unit 10, in the Pribilof and
Aleutian Islands Zone, and Unit 17, in the North Zone, the daily bag
limit is 6 geese.
2. In Unit 18, in the North Zone, the daily bag limit is 10 geese.
Brant: The daily bag limit is 2 brant.
Snipe: The daily bag limit is 8 snipe.
Sandhill Cranes: The daily bag limit is 2 cranes in the Southeast,
Gulf Coast, Kodiak, and Pribilof and Aleutian Islands Zones, and Unit
17 in the North Zone. In the remainder of the North Zone (outside Unit
17), the daily bag limit is 3 cranes.
Tundra Swan Seasons
Outside Dates: September 1-October 31.
Season Lengths: 61 days.
Daily Bag and Possession Limits and Special Conditions: All hunting
is by permit only according to the following conditions.
1. In Unit 17, in the North Zone, 200 permits may be issued; 3
tundra swans may be authorized per permit, and 1 permit may be issued
per hunter per season.
2. In Unit 18, in the North Zone, 500 permits may be issued; 3
tundra swans may be authorized per permit, and 1 permit may be issued
per hunter per season.
3. In Unit 22, in the North Zone, 300 permits may be issued; 3
tundra swans may be authorized per permit, and 1 permit may be issued
per hunter per season.
4. In Unit 23, in the North Zone, 300 permits may be issued; 3
tundra swans may be authorized per permit, and 1 permit may be issued
per hunter per season.
Hawaii
Mourning Dove Seasons
Outside Dates: October 1-January 31.
Season Lengths and Daily Bag Limits: 65 days with a daily bag limit
of 15 doves or 75 days with a daily bag of 12 doves.
Note: Mourning doves may be taken in Hawaii in accordance with
shooting hours and other regulations set by the State of Hawaii, and
subject to the applicable provisions of 50 CFR part 20.
Puerto Rico
Dove and Pigeon Seasons
Outside Dates: September 1-January 15.
Season Lengths: 60 days.
Daily Bag Limits: 30 Zenaida, mourning, and white-winged doves in
the aggregate, of which 10 may be Zenaida doves and 3 may be mourning
doves, and 5 scaly-naped pigeons.
Closed Seasons: There is no open season on the white-crowned pigeon
and the plain pigeon, which are protected by the Commonwealth of Puerto
Rico.
Closed Areas: There is no open season on doves or pigeons in the
following areas: Municipality of Culebra, Desecheo Island, Mona Island,
El Verde Closure Area, and Cidra Municipality and adjacent areas.
Duck, Coot, Gallinule, and Snipe Seasons
Outside Dates: October 1-January 31.
Season Lengths: 55 days. The season may be split into 2 segments.
Daily Bag Limits: 6 ducks, 6 common gallinules, and 8 snipe.
Closed Seasons: There is no open season on the ruddy duck, white-
cheeked pintail, West Indian whistling duck, fulvous whistling duck,
and masked duck, which are protected by the Commonwealth of Puerto
Rico. There is no open season on the purple gallinule, American coot,
and Caribbean coot.
Closed Areas: There is no open season on ducks, gallinules, and
snipe in the Municipality of Culebra and on Desecheo Island.
Virgin Islands
Dove and Pigeon Seasons
Outside Dates: September 1-January 15.
Season Lengths: 60 days.
Daily Bag and Possession Limits: 10 Zenaida doves.
Closed Seasons: There is no open season for ground-doves, quail-
doves, and pigeons.
Closed Areas: There is no open season for migratory game birds on
Ruth Cay (just south of St. Croix).
Local Names for Certain Birds: Zenaida dove, also known as mountain
dove; bridled quail-dove, also known as Barbary dove or partridge;
common ground-dove, also known as stone dove, tobacco dove, rola, or
tortolita; scaly-naped pigeon, also known as red-necked or scaled
pigeon.
Duck Seasons
Outside Dates: December 1-January 31.
Season Lengths: 55 days.
Daily Bag Limits: 6 ducks.
Closed Seasons: There is no open season on the ruddy duck, white-
cheeked pintail, West Indian whistling-duck, fulvous whistling-duck,
and masked duck.
Special Falconry Regulations
In accordance with 50 CFR 21.82, falconry is a permitted means of
taking migratory game birds in any State except for Hawaii. States may
select an extended season for taking migratory game birds in accordance
with the following:
Outside Dates: September 1-March 10.
Season Lengths: For all hunting methods combined, the combined
length of the extended season, regular season, and any special or
experimental seasons must not exceed 107 days for any species or group
of species in a geographical area. Each extended season may be split
into 3 segments.
Daily Bag Limits: Falconry daily bag limits for all permitted
migratory game birds must not exceed 3 birds in the aggregate during
extended falconry seasons, any special or experimental seasons, and
regular hunting seasons in each State, including those that do not
select an extended falconry season.
Note: General hunting regulations, including seasons and hunting
hours, apply to falconry. Regular season bag limits do not apply to
falconry. The falconry bag limit is not in addition to shooting limits.
Area, Unit, and Zone Descriptions
Ducks (Including Mergansers) and Coots
Atlantic Flyway
Connecticut
North Zone: That portion of the State north of I-95.
South Zone: Remainder of the State.
Maine
North Zone: That portion north of the line extending east along
Maine State Highway 110 from the New Hampshire-
[[Page 40203]]
Maine State line to the intersection of Maine State Highway 11 in
Newfield; then north and east along Route 11 to the intersection of
U.S. Route 202 in Auburn; then north and east on Route 202 to the
intersection of I-95 in Augusta; then north and east along I-95 to
Route 15 in Bangor; then east along Route 15 to Route 9; then east
along Route 9 to Stony Brook in Baileyville; then east along Stony
Brook to the U.S. border.
Coastal Zone: That portion south of a line extending east from the
Maine-New Brunswick border in Calais at the Route 1 Bridge; then south
along Route 1 to the Maine-New Hampshire border in Kittery.
South Zone: Remainder of the State.
Maryland
Western Zone: Allegany, Carroll, Garrett, Frederick, and Washington
Counties; and those portions of Baltimore, Howard, Prince George's, and
Montgomery Counties west of a line beginning at I-83 at the
Pennsylvania State line, following I-83 south to the intersection of I-
83 and I-695 (Outer Loop), south following I-695 (Outer Loop) to its
intersection with I-95, south following I-95 to its intersection with
I-495 (Outer Loop), and following I-495 (Outer Loop) to the Virginia
shore of the Potomac River.
Eastern Zone: That portion of the State not included in the Western
Zone.
Special Teal Season Area: Calvert, Caroline, Cecil, Dorchester,
Harford, Kent, Queen Anne's, St. Mary's, Somerset, Talbot, Wicomico,
and Worcester Counties; that part of Anne Arundel County east of
Interstate 895, Interstate 97, and Route 3; that part of Prince
George's County east of Route 3 and Route 301; and that part of Charles
County east of Route 301 to the Virginia State Line.
Massachusetts
Western Zone: That portion of the State west of a line extending
south from the Vermont State line on I-91 to MA 9, west on MA 9 to MA
10, south on MA 10 to U.S. 202, south on U.S. 202 to the Connecticut
State line.
Central Zone: That portion of the State east of the Berkshire Zone
and west of a line extending south from the New Hampshire State line on
I-95 to U.S. 1, south on U.S. 1 to I-93, south on I-93 to MA 3, south
on MA 3 to U.S. 6, west on U.S. 6 to MA 28, west on MA 28 to I-195,
west to the Rhode Island State line; except the waters, and the lands
150 yards inland from the high-water mark, of the Assonet River
upstream to the MA 24 bridge, and the Taunton River upstream to the
Center Street-Elm Street bridge shall be in the Coastal Zone.
Coastal Zone: That portion of Massachusetts east and south of the
Central Zone.
New Hampshire
Northern Zone: That portion of the State east and north of the
Inland Zone beginning at the junction of Route 10 and Route 25-A in
Orford, east on Route 25-A to Route 25 in Wentworth, southeast on Route
25 to Exit 26 of Route I-93 in Plymouth, south on Route I-93 to Route 3
at Exit 24 of Route I-93 in Ashland, northeast on Route 3 to Route 113
in Holderness, north on Route 113 to Route 113-A in Sandwich, north on
Route 113-A to Route 113 in Tamworth, east on Route 113 to Route 16 in
Chocorua, north on Route 16 to Route 302 in Conway, east on Route 302
to the Maine-New Hampshire border.
Inland Zone: That portion of the State south and west of the
Northern Zone, west of the Coastal Zone, and includes the area of
Vermont and New Hampshire as described for hunting reciprocity. A
person holding a New Hampshire hunting license that allows the taking
of migratory waterfowl or a person holding a Vermont resident hunting
license that allows the taking of migratory waterfowl may take
migratory waterfowl and coots from the following designated area of the
Inland Zone: the State of Vermont east of Route I-91 at the
Massachusetts border, north on Route I-91 to Route 2, north on Route 2
to Route 102, north on Route 102 to Route 253, and north on Route 253
to the border with Canada and the area of New Hampshire west of Route
63 at the Massachusetts border, north on Route 63 to Route 12, north on
Route 12 to Route 12-A, north on Route 12-A to Route 10, north on Route
10 to Route 135, north on Route 135 to Route 3, north on Route 3 to the
intersection with the Connecticut River.
Coastal Zone: That portion of the State east of a line beginning at
the Maine-New Hampshire border in Rollinsford, then extending to Route
4 west to the city of Dover, south to the intersection of Route 108,
south along Route 108 through Madbury, Durham, and Newmarket to the
junction of Route 85 in Newfields, south to Route 101 in Exeter, east
to Interstate 95 (New Hampshire Turnpike) in Hampton, and south to the
Massachusetts border.
New Jersey
Coastal Zone: That portion of the State seaward of a line beginning
at the New York State line in Raritan Bay and extending west along the
New York State line to NJ 440 at Perth Amboy; west on NJ 440 to the
Garden State Parkway; south on the Garden State Parkway to NJ 109;
south on NJ 109 to Cape May County Route 633 (Lafayette Street); south
on Lafayette Street to Jackson Street; south on Jackson Street to the
shoreline at Cape May; west along the shoreline of Cape May beach to
COLREGS Demarcation Line 80.503 at Cape May Point; south along COLREGS
Demarcation Line 80.503 to the Delaware State line in Delaware Bay.
North Zone: That portion of the State west of the Coastal Zone and
north of a line extending west from the Garden State Parkway on NJ 70
to the New Jersey Turnpike, north on the turnpike to U.S. 206, north on
U.S. 206 to U.S. 1 at Trenton, west on U.S. 1 to the Pennsylvania State
line in the Delaware River.
South Zone: That portion of the State not within the North Zone or
the Coastal Zone.
New York
Lake Champlain Zone: That area east and north of a continuous line
extending along U.S. 11 from the New York-Canada International boundary
south to NY 9B, south along NY 9B to U.S. 9, south along U.S. 9 to NY
22 south of Keesville; south along NY 22 to the west shore of South
Bay, along and around the shoreline of South Bay to NY 22 on the east
shore of South Bay; southeast along NY 22 to U.S. 4, northeast along
U.S. 4 to the Vermont State line.
Long Island Zone: That area consisting of Nassau County, Suffolk
County, that area of Westchester County southeast of I-95, and their
tidal waters.
Western Zone: That area west of a line extending from Lake Ontario
east along the north shore of the Salmon River to I-81, and south along
I-81 to the Pennsylvania State line.
Northeastern Zone: That area north of a continuous line extending
from Lake Ontario east along the north shore of the Salmon River to I-
81, south along I-81 to NY 31, east along NY 31 to NY 13, north along
NY 13 to NY 49, east along NY 49 to NY 365, east along NY 365 to NY 28,
east along NY 28 to NY 29, east along NY 29 to NY 22, north along NY 22
to Washington County Route 153, east along CR 153 to the New York-
Vermont boundary, exclusive of the Lake Champlain Zone.
Southeastern Zone: The remaining portion of New York.
North Carolina
Coastal Zone: All counties and portions of counties east of I-95.
Inland Zone: All counties and portions of counties west of I-95.
[[Page 40204]]
Pennsylvania
Lake Erie Zone: The Lake Erie waters of Pennsylvania and a
shoreline margin along Lake Erie from New York on the east to Ohio on
the west extending 150 yards inland but including all of Presque Isle
Peninsula.
Northwest Zone: The area bounded on the north by the Lake Erie Zone
and including all of Erie and Crawford Counties and those portions of
Mercer and Venango Counties north of I-80.
North Zone: That portion of the State east of the Northwest Zone
and north of a line extending east on I-80 to U.S. 220, Route 220 to I-
180, I-180 to I-80, and I-80 to the Delaware River.
South Zone: The remaining portion of Pennsylvania.
Vermont
Lake Champlain Zone: The U.S. portion of Lake Champlain and that
area north and west of the line extending from the New York border
along U.S. 4 to VT 22A at Fair Haven; VT 22A to U.S. 7 at Vergennes;
U.S. 7 to VT 78 at Swanton; VT 78 to VT 36; VT 36 to Maquam Bay on Lake
Champlain; along and around the shoreline of Maquam Bay and Hog Island
to VT 78 at the West Swanton Bridge; VT 78 to VT 2 in Alburg; VT 2 to
the Richelieu River in Alburg; along the east shore of the Richelieu
River to the Canadian border.
Interior Zone: That portion of Vermont east of the Lake Champlain
Zone and west of a line extending from the Massachusetts border at I-
91; north along I-91 to U.S. 2; east along U.S. 2 to VT 102; north
along VT 102 to VT 253; north along VT 253 to the Canadian border.
Connecticut River Zone: The remaining portion of Vermont east of
the Interior Zone.
Virginia
Western Zone: All counties and portions of counties west of I-95.
Eastern Zone: All counties and portions of counties east of I-95.
Mississippi Flyway
Illinois
North Zone: That portion of the State north of a line extending
west from the Indiana border along Peotone-Beecher Road to Illinois
Route 50, south along Illinois Route 50 to Wilmington-Peotone Road,
west along Wilmington-Peotone Road to Illinois Route 53, north along
Illinois Route 53 to New River Road, northwest along New River Road to
Interstate Highway 55, south along I-55 to Pine Bluff-Lorenzo Road,
west along Pine Bluff-Lorenzo Road to Illinois Route 47, north along
Illinois Route 47 to I-80, west along I-80 to I-39, south along I-39 to
Illinois Route 18, west along Illinois Route 18 to Illinois Route 29,
south along Illinois Route 29 to Illinois Route 17, west along Illinois
Route 17 to the Mississippi River, and due south across the Mississippi
River to the Iowa border.
Central Zone: That portion of the State south of the North Duck
Zone line to a line extending west from the Indiana border along I-70
to Illinois Route 4, south along Illinois Route 4 to Illinois Route
161, west along Illinois Route 161 to Illinois Route 158, south and
west along Illinois Route 158 to Illinois Route 159, south along
Illinois Route 159 to Illinois Route 3, south along Illinois Route 3 to
St. Leo's Road, south along St. Leo's Road to Modoc Road, west along
Modoc Road to Modoc Ferry Road, southwest along Modoc Ferry Road to
Levee Road, southeast along Levee Road to County Route 12 (Modoc Ferry
entrance Road), south along County Route 12 to the Modoc Ferry route
and southwest on the Modoc Ferry route across the Mississippi River to
the Missouri border.
South Zone: That portion of the State south and east of a line
extending west from the Indiana border along I-70, south along U.S.
Highway 45, to Illinois Route 13, west along Illinois Route 13 to
Greenbriar Road, north on Greenbriar Road to Sycamore Road, west on
Sycamore Road to N. Reed Station Road, south on N. Reed Station Road to
Illinois Route 13, west along Illinois Route 13 to Illinois Route 127,
south along Illinois Route 127 to State Forest Road (1025 N), west
along State Forest Road to Illinois Route 3, north along Illinois Route
3 to the south bank of the Big Muddy River, west along the south bank
of the Big Muddy River to the Mississippi River, west across the
Mississippi River to the Missouri border.
South Central Zone: The remainder of the State between the south
border of the Central Zone and the north border of the South Zone.
Indiana
North Zone: That part of Indiana north of a line extending east
from the Illinois border along State Road 18 to U.S. 31; north along
U.S. 31 to U.S. 24; east along U.S. 24 to Huntington; southeast along
U.S. 224; south along State Road 5; and east along State Road 124 to
the Ohio border.
Central Zone: That part of Indiana south of the North Zone boundary
and north of the South Zone boundary.
South Zone: That part of Indiana south of a line extending east
from the Illinois border along I-70; east along National Ave.; east
along U.S. 150; south along U.S. 41; east along State Road 58; south
along State Road 37 to Bedford; and east along U.S. 50 to the Ohio
border.
Iowa
North Zone: That portion of Iowa north of a line beginning on the
South Dakota-Iowa border at I-29, southeast along I-29 to State Highway
20 to the Iowa-Illinois border.
Central Zone: The remainder of Iowa not included in the North and
South zones.
South Zone: That portion of Iowa west of I-29 and south of State
Highway 92 east to the Iowa-Illinois border.
Kentucky
West Zone: All counties west of and including Butler, Daviess,
Ohio, Simpson, and Warren Counties.
East Zone: The remainder of Kentucky.
Louisiana
East Zone: That area of the State beginning at the Arkansas border,
then south on U.S. Hwy 79 to State Hwy 9, then south on State Hwy 9 to
State Hwy 147, then south on State Hwy 147 to U.S. Hwy 167, then south
and east on U.S. Hwy 167 to U.S. Hwy 90, then south on U.S. Hwy 90 to
the Mississippi State line.
West Zone: Remainder of the State.
Michigan
North Zone: The Upper Peninsula.
Middle Zone: That portion of the Lower Peninsula north of a line
beginning at the Michigan-Wisconsin boundary line in Lake Michigan,
directly due west of the mouth of Stoney Creek in section 31, T14N
R18W, Oceana County; then proceed easterly and southerly along the
centerline of Stoney Creek to its intersection with Scenic Drive;
southerly on Scenic Drive to Stoney Lake Road in section 5, T13N R18W,
Oceana County; easterly on Stoney Lake Road then both west and east
Garfield Roads (name change only; not an intersection) then crossing
highway U.S.-31 to State Highway M-20 (north of the town of New Era;
also locally named Hayes Road) in section 33, T14N R17W, Oceana County;
easterly on M-20 through Oceana, Newaygo, Mecosta, Isabella, and
Midland Counties to highway U.S.-10 business route in the city of
Midland; easterly on U.S.-10 Business Route (BR) to highway U.S.-10 at
the Bay County line; easterly on U.S.-10 then crossing U.S.-75 to State
Highway M-25 (west of the town of Bay City); easterly along M-25 into
Tuscola County; then
[[Page 40205]]
northeasterly and easterly on M-25 through Tuscola County into Huron
County, turning southeasterly on M-25 (near the town of Huron City;
also locally named North Shore Road) to the centerline of Willow Creek
in section 4, T18N R14E, Huron County; then northerly along the
centerline of Willow Creek to the mouth of Willow Creek into Lake
Huron; then directly due east along a line from the mouth of Willow
Creek heading east into Lake Huron to a point due east and on the
Michigan/U.S.-Canadian border.
South Zone: The remainder of Michigan.
Minnesota
North Duck Zone: That portion of the State north of a line
extending east from the North Dakota State line along State Highway 210
to State Highway 23 and east to State Highway 39 and east to the
Wisconsin State line at the Oliver Bridge.
South Duck Zone: The portion of the State south of a line extending
east from the South Dakota State line along U.S. Highway 212 to I-494
and east to I-94 and east to the Wisconsin State line.
Central Duck Zone: The remainder of the State.
Missouri
North Zone: That portion of Missouri north of a line running west
from the Illinois border at I-70; west on I-70 to Hwy 65; north on Hwy
65 to Hwy 41, north on Hwy 41 to Hwy 24; west on Hwy 24 to MO Hwy 10,
west on Hwy 10 to Hwy 69, north on Hwy 69 to MO Hwy 116, west on MO Hwy
116 to Hwy 59, south on Hwy 59 to the Kansas border.
Middle Zone: The remainder of Missouri not included in other zones.
South Zone: That portion of Missouri south of a line running west
from the Illinois border on MO Hwy 74 to MO Hwy 25; south on MO Hwy 25.
to U.S. Hwy 62; west on U.S. Hwy 62 to MO Hwy 53; north on MO Hwy 53 to
MO Hwy 51; north on MO Hwy 51 to U.S. Hwy 60; west on U.S. Hwy 60 to MO
Hwy 21; north on MO Hwy 21 to MO Hwy 72; west on MO Hwy 72 to MO Hwy
32; west on MO Hwy 32 to U.S. Hwy 65; north on U.S. Hwy 65 to U.S. Hwy
54; west on U.S. Hwy 54 to the Kansas border.
Ohio
Lake Erie Marsh Zone: Includes all land and water within the
boundaries of the area bordered by a line beginning at the intersection
of I-75 at the Ohio-Michigan State line and continuing south to
Interstate 280, then south on I-280 to the Ohio Turnpike (I-80/I-90),
then east on the Ohio Turnpike to the Erie-Lorain County line, then
north to Lake Erie, then following the Lake Erie shoreline at a
distance of 200 yards offshore, then following the shoreline west
toward and around the northern tip of Cedar Point Amusement Park, then
continuing from the westernmost point of Cedar Point toward the
southernmost tip of the sand bar at the mouth of Sandusky Bay and out
into Lake Erie at a distance of 200 yards offshore continuing parallel
to the Lake Erie shoreline north and west toward the northernmost tip
of Cedar Point National Wildlife Refuge, then following a direct line
toward the southernmost tip of Wood Tick Peninsula in Michigan to a
point that intersects the Ohio-Michigan State line, then following the
State line back to the point of the beginning.
North Zone: That portion of the State, excluding the Lake Erie
Marsh Zone, north of a line extending east from the Indiana State line
along U.S. Highway (U.S.) 33 to State Route (SR) 127, then south along
SR 127 to SR 703, then south along SR 703 and including all lands
within the Mercer Wildlife Area to SR 219, then east along SR 219 to SR
364, then north along SR 364 and including all lands within the St.
Mary's Fish Hatchery to SR 703, then east along SR 703 to SR 66, then
north along SR 66 to U.S. 33, then east along U.S. 33 to SR 385, then
east along SR 385 to SR 117, then south along SR 117 to SR 273, then
east along SR 273 to SR 31, then south along SR 31 to SR 739, then east
along SR 739 to SR 4, then north along SR 4 to SR 95, then east along
SR 95 to SR 13, then southeast along SR 13 to SR 3, then northeast
along SR 3 to SR 60, then north along SR 60 to U.S. 30, then east along
U.S. 30 to SR 3, then south along SR 3 to SR 226, then south along SR
226 to SR 514, then southwest along SR 514 to SR 754, then south along
SR 754 to SR 39/60, then east along SR 39/60 to SR 241, then north
along SR 241 to U.S. 30, then east along U.S. 30 to SR 39, then east
along SR 39 to the Pennsylvania State line.
South Zone: The remainder of Ohio not included in the Lake Erie
Marsh Zone or the North Zone.
Tennessee
Reelfoot Zone: All or portions of Lake and Obion Counties.
Remainder of State: That portion of Tennessee outside of the
Reelfoot Zone.
Wisconsin
North Zone: That portion of the State north of a line extending
east from the Minnesota State line along U.S. Highway 10 to U.S.
Highway 41, then north on U.S. Highway 41 to the Michigan State line.
Open Water Zone: That portion of the State extending 500 feet or
greater from the Lake Michigan shoreline bounded by the Michigan State
line and the Illinois State line.
South Zone: The remainder of the State.
Central Flyway
Colorado (Central Flyway Portion)
Special Teal Season Area: Lake and Chaff
[…truncated; see source link]Indexed from Federal Register on August 18, 2025.
This is legal information, not legal advice. Laws vary by jurisdiction and change frequently. Always verify current law with official sources and consult a licensed attorney in your jurisdiction for advice on your specific situation.