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Scrutiny On National Park Service and Drakes Bay Oyster Co. Ramps Up

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While Congressional Republicans are investigating alleged misconduct of the National Park Service in its handling of an oyster farm at Point Reyes National Seashore, California officials are pushing the company to explain why it is out of compliance with its operating permit.

The inquires come as the Drakes Bay Oyster Co. nears the end of its 40-year lease, which expires in November, and while seashore officials are finishing an environmental impact statement examining impacts of the oyster farm on Drakes Estero.

In Washington, U.S. Sens. David Vitter, R-Louisiana, and James Inhofe, R-Oklahoma, this week wrote Interior Secretary Ken Salazar (see attachment) with a request that he "explain why he consistently ignored serious complaints regarding the scientific integrity of the Director of the National Park Service Jon Jarvis, and why these allegations were not addressed during Mr. Jarvis' nomination process."

"We've seen facts manipulated and science ignored across the administration while they've developed policies with huge negative effects on the economy," said Sen. Vitter in announcing his probe. "We want the public to be aware of the administration's scientific gimmickry, because important policy decisions by the EPA and Interior shouldn't be based on guesswork or manipulated facts - and we want the agencies to be transparent and explain their methods."

The Park Service director is being pursued because he was the agency's Pacific Region director with oversight of Point Reyes before being appointed director. He has declined to comment publicly on the Point Reyes matter.

Over in the House, meanwhile, Rep. Darrell Issa, who chairs the House Oversight Committee, also is looking into the Park Service's handling of the oyster company.

While the congressional investigations seem centered on possible misconduct within the Park Service, the California Coastal Commission is losing patience over its requests that Drakes Bay Oyster Co. explain why it seems to be out of compliance not only with where it is operating in the estero but also with a "Consent Cease and Desist Order" that company owner Kevin Lunny helped draft.

Specifically, the commission was referring to the company's use of a lateral channel in the estero that was specifically off-limits to its boats at certain times of the year (March 1-June 30) because of the harbor seal pupping season, and debris from oyster farm operations that washes up in the estero and nearby beaches. (Mr. Lunny has maintained that the debris is from operations under the company's previous owner and that his workers go out at least once a month to pick up the plastic apparatus used in oyster farming.)

In a February 1 letter (see attachment) to Mr. Lunny, the commission stressed that "you have known of our concerns on these two issues for more than four months, and we have yet to receive any written response. We feel that we have been very patient concerning resolution of these most recently alleged violations, especially in light of the many alleged violations we have brought to your attenion over the years," wrote Jo Ginsberg, the commission's enforcement analyst. "We are concerned that you have not responded to our letters, and we hope this failure to respond is not indicative of a lack of willingess on your part to resolve the outstanding alleged violations of the Coastal Act and the Order, and to comply with the Order in the future.

"Should this prove to be the case, we may have little choice but to seek such remedies as assessment of stipulated penalities and/or filing a lawsuit..."

On Tuesday, Mr. Lunny said he and his attorneys were working on a response to the commission, and that it had been held up while he awaited a response from Point Reyes Superintendent Cicely Muldoon over the Park Service's regulations concerning boats in the lateral channel. There long had been an understanding with the Park Service, he said, that the company's boats could enter a portion of the lateral channel on the western end.

The company's boats have "always shown there during pupping season, OK, so it’s not a new thing, and it’s not a thing we’ve ever have a concern about because it’s nowhere near the seals."

On January 23, a week before the commission's letter to Mr. Lunny, Superintendent Muldoon wrote him (see attachment) and stated that under the Special Use Permit granted Drakes Bay Oyster Co. in 2008, "During the breeding season, March 1 through June 30, the 'Main Channel' and 'Lateral Channel' of Drakes Estero will be closed to boat traffic. During the remainder of the year, the Lateral Channel and the Main Channel are open to boat traffic outside the (seal) protection zone."

"The plain meaning of this provision is that the entirety of the Lateral Channel is closed during the harbor seal breeding season (March 1-June 30)."

Those restrictions date to 1992, when protocols were established to protect harbor seals in the estero, and were recognized by the oyster company itself as recently as February 2009, according to California Coastal Commission records.

The interest in the fate of an oyster company that produces between 450,000-500,000 pounds of Pacific oyster meat a year for Bay Area outlets has been fanned by both U.S. Sen. Dianne Feinstein, an ardent supporter of the oyster company and its small workforce, and environmentalists and conservationists who want to see the estero granted official wilderness designation.

The estero long has been viewed for designation as official wilderness -- the 1976 legislation that set aside 25,370 acres of the seashore as wilderness cited another 8,003 acres encompassing the estero that would be "essentially managed as wilderness, to the extent possible, with efforts to steadily continue to remove all obstacles to the eventual conversion of these lands and waters to wilderness status" -- and the oyster operation is seen as being incompatible with such a designation.

The Park Service's handling of the oyster company's future has been both contentious and embarassing for the agency. While a Park Service report on the oyster operation concluded that it was impacting harbor seals, the report at times has withered under scrutiny. In 2009 the National Research Council said the NPS report was skewed, "selectively" manipulated in several areas, and inconclusive overall.

A year later, the Interior's Solicitor's Office conducted an investigation into whether the staff at Point Reyes had intentionally mishandled research data it collected to determine the oyster farm's impacts, if any, on harbor seals during pupping season. That probe cleared the staff of any criminal behavior or criminal misconduct in the matter, a finding that itself has drawn criticism.

Last November, the federal Marine Mammal Commission weighed in with its own report, which found that that seal behavior at Drakes Estero was "at least correlated" with operations of the oyster company. The commission also  said more research was needed to determine a "cause and effect."

All the reports and investigations haven't seemed, though, to alter the fact that Congress in 1976 intended for the estero to become official wilderness, that the oyster company's lease is set to expire in November, something Mr. Lunny knew when he took over the operation in 2005.

Indeed, at various times Mr. Lunny publicly acknowledged the November 2012 expiration date. But he also hoped that by improving the operation that perhaps the Park Service would be willing to extend the lease beyond that date

"We know the plan is to shut us down in 2012," Mr. Lunny told the Pacific Sun in 2007. "We went into this knowing that that was a chance. We also knew that (oyster farming) could be done right. (Johnson's Oyster Co.) was a black eye for the park. The environmental community was up in arms about the way it was being operated.... We thought, well, if we could prove that we could do it right, maybe we could get a new look in 2012."

Comments

YPW, thank you for spelling "pore" correctly and not spelling it "pour" as many people do!

Kurt wrote:

"The question, Zeb, revolves around what is allowed in officially designated wilderness. One thing that is not allowed are commercial operations, of which the oyster company is one."

However, Wilderness has commercial operations aplenty. A big one is grazing. I've heard that in Colorado sometimes you can barely find the designated trail because the cattle or the cattle trucks have created spiderwebs of tracks all over the fields. Another one, which YPW alludes to, is luxury horse and packstock outfitting operations that lug in sedentary folk with supplies of alcohol, gourmet food, and tents that sound more comfortable than the semipermanent ones at Yosemite Valley. As the flatlanders are conveyed to their daily resting spot, the giant mammals tear up the trails and annoy other visitors. All for a buck. I do hope that the wilderness adventurers remember to bring along their satellite phones so they can sell or buy quickly depending on what the New York Stock Exchange is doing that day.

Regarding grazing again, let me quote from my 1987 edition Carson–Iceberg Wilderness map (this Wilderness is in the Sierra Nevada):

"During your wilderness trip, you are likely to see cattle or sheep grazing . . . .

". . . .

"Gates and drift fences [which I might mention are permanent structures and installations banned by the Wilderness Act of 1964] control livestock to prevent overgrazing and reduce conflicts with wilderness visitors. . . .

". . . .

"You may see vehicles in the Wolf Creek area. The [law] provides for continued motorized access by grazing permitees." (Boldface added.)

And indeed, I've seen pictures of wide and entirely unnatural-looking graded dirt roads in that Wilderness. The same roads that, if a cyclist rode on them, she could and presumably would get a ticket for trammeling the untrammeled pristine area and showing a lack of stewardship-sustainability sensitivity. (Please pardon both the alliteration and the invocation of buzzwords currently in vogue.)

I hear that it's the same at Point Reyes. Lots of cattle, lots of roads. But no oyster farm, thank you.

As always with Wilderness, the ironies abound. If the federal government could agree on anything, we'd get an update to the Wilderness Act to fix some of them. But if it happens, it'll probably be either (a) after our lifetimes or (b) because the Republicans took over the Presidency, the House, and 60 Senate seats and simply abolished the Wilderness Act and returned these areas to multiple use. Which no one should wish for, but which Wilderness-purist temperance-movement attitudes invite.


Yes, yes, yes, there are exceptions to everything, including commercial horse packing in the high country of Sequoia and Kings Canyon national parks. Two points, though:

1: The language concerning commercial operations in wilderness areas states (and you should know this, imtnbke, being a lawyer), "Except as specifically provided for in this chapter, and subject to existing private rights, there shall be no commercial enterprise and no permanent road within any wilderness area designated by this chapter and, except as necessary to meet minimum requirements for the administration of the area for the purpose of this chapter (including measures required in emergencies involving the health and safety of persons within the area), there shall be no temporary road, no use of motor vehicles, motorized equipment or motorboats, no landing of aircraft, no other form of mechanical transport, and no structure or installation within any such area."

2: The Wilderness Act, naturally, contained exceptions to commercial use, stating, "Commercial services may be performed within the wilderness areas designated by this chapter to the extent necessary for activities which are proper for realizing the recreational or other wilderness purposes of the areas."

So concerning those high sierra camps in Yosemite, they would seem to be allowed even if the potential wilderness were made official wilderness.

We live in a world of exceptions, many created out of necessity, more than a few created out of political might. And some exceptions were simply grandfathered in, as I suspect more than a few of those grazing leases that can be found in use in wilderness areas were.

The oyster company's situation is somewhat a horse of a different color, in that it can be argued to be a private existing right, but also a right that had a well-defined life of 40 years. And it certainly would seem to be within the purview of the NPS, or Congress, to redraw the proposed wilderness area around the oyster company's operations. Or the NPS and Congress could change directions, and propose making the area a Heritage Area, which we're seeing more and more of around the country.

Stay tuned. The fat lady ain't sung yet on this matter.


There's commercial horse and mule packing throughout many wilderness areas. That is a case where the 1964 Wilderness Act says that a "commercial enterprise" may exist to serve recreational opportunities.

However, that's not what addresses preexisting "nonconforming uses" in potential wilderness areas. The Wilderness Act itself doesn't address the concept of "potential wilderness". That's some brilliant idea from some member of Congress, and to my knowledge it has only been used in NPS wilderness areas. There is no way the High Sierra Camps will remain and they simply declare the areas full wilderness. The fact is, Congress declared these places potential wilderness because they didn't feel they were sufficient as a type of "commercial service" that might qualify for the exception. They're more than services that bring people in and out without making a permanent impact on the land. They're permanent structures, septic systems, etc. It looks like parts of Curry Village were dropped into the middle of the wilderness.


y_p_w, while the verbiage "potential wilderness" might be unique to the NPS, similar landscapes exist elsewhere in the public lands kingdom. The Bureau of Land Management refers to such potential wilderness as Wilderness Study Areas, defined as: "...roadless areas of five thousand acres or more and roadless islands of the public lands, identified during the inventory required by section 201(a) of this Act as having wilderness characteristics described in the Wilderness Act of September 3, 1964 and shall from time to time report to the President his recommendation as the suitability or nonsuitability of each such area or island for preservation as wilderness..."

Furthermore, "In general, BLM is required to maintain the wilderness characteristics of each WSA until Congress decides whether it should either be designated as wilderness or should be released for other purposes."

This is an incredibly contentious issue in Utah, where the Southern Utah Wilderness Alliance has identified millions of acres of "potential wilderness" on BLM lands as being suitable for wilderness designation.

I don't know why the High Sierra Camps wouldn't qualify for an exemption to allow continued operation in official wilderness, as they certainly could be construed as being " necessary for activities which are proper for realizing the recreational or other wilderness purposes of the areas."


Hi, Kurt,

Yes, I agree with your summary of the Wilderness Act of 1964 and the various policy and political considerations that have resulted in exceptions being carved out of the idea of wilderness, both in the act itself and as a result of agency decisions. I also agree that the oyster farm controversy brings a number of important issues to the fore, and it will be enlightening to see what happens. I note that you've published a new article today about the oyster farm, and I'll read it with interest.


Kurt Repanshek:
I don't know why the High Sierra Camps wouldn't qualify for an exemption to allow continued operation in official wilderness, as they certainly could be construed as being " necessary for activities which are proper for realizing the recreational or other wilderness purposes of the areas."

I think they could meet an exception and still be "full wilderness" if there were anything in the original wilderness designation legislation or later modifications to the wilderness legislation that specifically noted that. I've seen dams at Desolation Wilderness in the Lake Tahoe area. I've also read the original wilderness legislation. It states that the operators of previously licensed hydroelectric facilities shall have reasonable access to operate/maintain those facilities. Strangely enough the legislation doesn't specify that they're allowed, but I think that's implied because no legislation is going to be able to remove a dam serving a region's water supply without the water district agreeing to it. We all know how hard San Francisco will fight to save the Hetch Hetchy Reservoir, and that's in a wilderness area.

http://www.wilderness.net/NWPS/documents/publiclaws/PDF/91-82.pdf

However, I just don't see that with the HSCs. I see the exception for "commercial services" in the original 1964 Wilderness Act as something that would logically only refer to temporary commercial activities in wilderness areas. I don't see the language as referring to permanent structures that serve some recreational purpose. I've mentioned guiding services. I could imagine maybe a catering service setting up temporary cooking facilities for a day in a special wilderness location. That there are permanent structures is obviously why they were marked as potential wilderness in the wilderness maps.


Here's an interesting article about conflicting uses in NPS wilderness areas:

http://www.justice.gov/enrd/3165.htm

What's interesting in looking at the map of Cumberland Island National Seashore http://www.nps.gov/common/commonspot/customcf/apps/maps/showmap.cfm?alph... is that a road cuts through the heart of the seashore's wilderness area, and so the borders of the wilderness have been drawn to effectively cut the road out of the wilderness area.

So it would seem that a precedent has been set that would allow for wilderness in Yosemite in the area of the HSC, with donut holes cut around the HSCs to exclude them from the official wilderness.


Kurt,

The 10% to 30% figures comes from an article you wrote a couple years back (can't find it anymore) in which we discussed how much open public space there was in the lower 48 and how much of that was wilderness or treated like wilderness.

I tried googling it, but could not find it.


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