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Sea Turtle Conservation; Shrimp Trawling Requirements
Note: EPA no longer updates this information, but it may be useful as a reference or resource.
[Federal Register: February 22, 2006 (Volume 71, Number 35)]
[Rules and Regulations]
[Page 8990-8992]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr22fe06-25]
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DEPARTMENT OF COMMERCE
National Oceanic and Atmospheric Administration
50 CFR Parts 222 and 223
[Docket No. 050922245-6038-06; I.D. 020906A]
RIN 0648-AT89
Sea Turtle Conservation; Shrimp Trawling Requirements
AGENCY: National Marine Fisheries Service (NMFS), National Oceanic and
Atmospheric Administration (NOAA), Commerce.
ACTION: Temporary rule.
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SUMMARY: NMFS issues this 30-day temporary rule to allow shrimp
fishermen to continue to use limited tow times as an alternative to
Turtle Excluder Devices (TEDs) in inshore and offshore waters from the
Florida/Alabama border, westward to the Louisiana/Texas border, and
extending offshore 10 nautical miles. The previous 30-day variances of
the TED requirements were from September 23 through October 24, 2005;
October 11 through November 10, 2005; October 24 through November 23,
2005; November 23 through December 23, 2005; and from December 23,
2005, through January 23, 2006, for waters affected by Hurricanes
Katrina and Rita. These variances were initially for 50 nautical miles,
while the most recent variance was for 20 nautical miles. After an
investigation, the Alabama Department of Conservation and Natural
Resources (ALDCNR), Mississippi Department of Marine Resources (MDMR),
and the Louisiana Department of Wildlife and Fisheries (LADWF) have
determined that excessive debris is still affecting fishermen's ability
to use TEDs effectively in an area extending approximately 10 nm
offshore. This action is necessary because environmental conditions
resulting from Hurricanes Katrina and Rita persist on the fishing
grounds, preventing some fishermen from using TEDs effectively.
DATES: Effective from February 16, 2006 through 11:59 p.m, local time,
March 20, 2006.
ADDRESSES: Requests for copies of the Environmental Assessment on this
action should be addressed to the Chief, Marine Mammal Division, Office
of Protected Resources, NMFS, 1315 East-West Highway, Silver Spring, MD
20910.
FOR FURTHER INFORMATION CONTACT: Michael Barnette, 727-551-5794.
SUPPLEMENTARY INFORMATION:
Background
All sea turtles that occur in U.S. waters are listed as either
endangered or threatened under the Endangered Species Act of 1973
(ESA). The Kemp's ridley (Lepidochelys kempii), leatherback
(Dermochelys coriacea), and hawksbill (Eretmochelys imbricata) turtles
are listed as endangered. The loggerhead (Caretta caretta) and green
(Chelonia mydas) turtles are listed as threatened, except for breeding
populations of green turtles in Florida and on the Pacific coast of
Mexico, which are listed as endangered.
Sea turtles are incidentally taken, and some are killed, as a
result of numerous activities, including fishery-related trawling
activities in the Gulf of Mexico and along the Atlantic seaboard. Under
the ESA and its implementing regulations, the taking of sea turtles is
prohibited, with exceptions identified in 50 CFR 223.206(d), or
according to the terms and conditions of a biological opinion issued
under section 7 of the ESA, or according to an incidental take permit
issued under section 10 of the ESA. The incidental taking of turtles
during shrimp or summer flounder trawling is exempted from the taking
prohibition of section 9 of the ESA if the conservation measures
specified in the sea turtle conservation regulations (50 CFR 223) are
followed. The regulations require most shrimp trawlers and summer
flounder trawlers operating in
[[Page 8991]]
the southeastern United States (Atlantic area, Gulf area, and summer
flounder sea turtle protection area; see 50 CFR 223.206) to have a
NMFS-approved TED installed in each net that is rigged for fishing to
allow sea turtles to escape. TEDs currently approved by NMFS include
single-grid hard TEDs and hooped hard TEDs conforming to a generic
description, the flounder TED, and one type of soft TED, the Parker
soft TED (see 50 CFR 223.207).
TEDs incorporate an escape opening, usually covered by a webbing
flap, which allows sea turtles to escape from trawl nets. To be
approved by NMFS, a TED design must be shown to be 97 percent effective
in excluding sea turtles during testing based upon specific testing
protocols (50 CFR 223.207(e)(1)). Most approved hard TEDs are described
in the regulations (50 CFR 223.207(a)) according to generic criteria
based upon certain parameters of TED design, configuration, and
installation, including height and width dimensions of the TED opening
through which the turtles escape.
The regulations governing sea turtle take prohibitions and
exemptions provide for the use of limited tow times as an alternative
to the use of TEDs for vessels with certain specified characteristics
or under certain special circumstances. The provisions of 50 CFR
223.206(d)(3)(ii) specify that the NOAA Assistant Administrator for
Fisheries (AA) may authorize compliance with tow time restrictions as
an alternative to the TED requirement if the AA determines that the
presence of algae, seaweed, debris, or other special environmental
conditions in a particular area makes trawling with TED-equipped nets
impracticable. The provisions of 50 CFR 223.206(d)(3)(i) specify the
maximum tow times that may be used when tow time limits are authorized
as an alternative to the use of TEDs. Each tow may be no more than 55
minutes from April 1 through October 31 and no more than 75 minutes
from November 1 through March 31, as measured from the time that the
trawl doors enter the water until they are removed from the water.
These tow time limits are designed to minimize the level of mortality
of sea turtles that are captured by trawl nets not equipped with TEDs.
Recent Events
On September 12, 2005, the NMFS Southeast Regional Administrator
received requests from the Marine Fisheries Division of the ALDCNR and
the LADWF to allow the use of tow times as an alternative to TEDs in
inshore and offshore waters because of excessive storm related debris
on the fishing grounds as a result of Hurricane Katrina. NMFS received
a similar request from the MDMR on September 13. On September 27, 2005,
the NMFS Southeast Regional Administrator received requests from the
LADWF and the Texas Parks and Wildlife Department (TPWD) to allow the
use of tow times as an alternative to TEDs in inshore and offshore
waters because of excessive storm related debris on the fishing grounds
as a result of Hurricane Rita. Subsequent to these requests, NMFS
issued 30-day exemptions to the TED requirements from September 23
through October 23, 2005, and October 11 through November 10, 2005, for
waters affected by Hurricanes Katrina and Rita, respectively (70 FR
56593 and 70 FR 60013, respectively).
On October 11, 2005, the NMFS Southeast Regional Administrator
received requests from the ALDCNR, MDMR, LADWF, and the TPWD for an
additional 30-day period allowing the use of restricted tow times as an
alternative to TEDs in inshore and offshore waters because of excessive
storm-related debris that was still present on the fishing grounds as a
result of Hurricanes Katrina and Rita. Subsequent to these requests,
NMFS issued a 30-day extension encompassing both previous exemptions to
the TED requirements, from October 24, 2005, through November 23, 2005
(70 FR 61911).
On November 15, 2005, the NMFS Southeast Regional Administrator
received requests from the Marine Fisheries Division of the ALDCNR,
MDMR, LADWF, and TPWD for an additional 30-day period allowing the use
of restricted tow times as an alternative to TEDs in state and federal
waters because of excessive storm-related debris on the fishing grounds
as a result of Hurricanes Katrina and Rita. Subsequent to these
requests, NMFS issued a 30-day extension encompassing both previous
exemptions to the TED requirements, from November 23, 2005, through
December 23, 2005 (70 FR 71406).
On December 7, 2005, the NMFS Southeast Regional Administrator
received a request from the Marine Fisheries Division of the ALDCNR to
allow the use of tow times as an alternative to TEDs in inshore and
offshore waters because of excessive storm related debris on the
fishing grounds as a result of Hurricane Katrina. NMFS received similar
requests on December 19, 2005, from the MDMR and the LADWF due to the
cumulative effects of Hurricanes Katrina and Rita. At that time, the
area cumulatively affected by the two hurricanes extended from the
Florida/Alabama border, westward to the Louisiana/Texas border, and
offshore 20 nautical miles. NMFS issued a 30-day extension encompassing
both previous exemptions to the TED requirements, from December 23,
2005, through January 23, 2006 (70 FR 77054).
On January 23, 2006, the NMFS Southeast Regional Administrator
received a request from the ALDCNR, MDMR and the LADWF for an
additional 30-day period allowing the use of restricted tow times as an
alternative to turtle excluder devices in inshore and offshore waters
because of excessive storm-related debris on the fishing grounds as a
result of Hurricanes Katrina and Rita. The area cumulatively affected
by the two hurricanes currently extends from the Florida/Alabama
border, westward to the Louisiana/Texas border, and offshore 10
nautical miles. Phone conversations between NMFS Southeast Region's
Protected Resources staff, fishermen, and state resource agency staffs
confirm there are problems with debris in state and federal waters from
the Florida/Alabama border, westward to the Louisiana/Texas border, and
offshore 10 nautical miles. ALDCNR interviewed shrimp fishermen who
indicated there are still serious debris problems out to 10 nautical
miles, while MDMR's investigation indicates debris problems are still
very serious nearshore, with continuing problems into the exclusive
economic zone. LADWF's investigation and interviews with shrimp
fishermen indicates there are still significant debris problems in
state and Federal waters.
Interviews between these state agencies and NMFS indicated some
shrimp fishermen continue to use TEDs in these areas as the TED is able
to exclude debris from the trawl; however, these interviews also
indicated there are still significant amounts of large debris that can
and does render TEDs ineffective at releasing turtles. NMFS Gear
Technician's investigations indicate that debris large enough to clog
TEDs tends to be nearshore and does not extend past 10 nautical miles.
They also indicate that most offshore fishermen are using their TEDs
due to the fact the debris offshore is of a nature and size that the
TEDs can ``shoot'' the debris from the trawl.
Special Environmental Conditions
The AA finds that debris washed into inshore and offshore waters by
Hurricanes Katrina and Rita off Alabama, westward to the Louisiana/
Texas border, and extending offshore 10
[[Page 8992]]
nautical miles, has created ongoing special environmental conditions
that make trawling with TED-equipped nets impracticable. Therefore, the
AA issues this notification to extend the current authorization for the
use of restricted tow times as an alternative to the use of TEDs in
inshore and offshore waters off Alabama, westward to the Louisiana/
Texas border, and extending offshore 10 nautical miles, through 11:59
p.m., local time, March 20, 2006. Tow times must be limited to no more
than 75 minutes measured from the time trawl doors enter the water
until they are retrieved from the water.
Continued Use of TEDs
NMFS encourages shrimp trawlers in the affected areas to continue
to use TEDs if possible, even though they are authorized under this
action to use restricted tow times.
NMFS gear experts have provided several general operational
recommendations to fishermen to maximize the debris exclusion ability
of TEDs that may allow some fishermen to continue using TEDs without
resorting to restricted tow times. To exclude debris, NMFS recommends
the use of hard TEDs made of either solid rod or of hollow pipe that
incorporate a bent angle at the escape opening, in a bottom-opening
configuration. In addition, the installation angle of a hard TED in the
trawl extension is an important performance element in excluding debris
from the trawl. High installation angles can trap debris either on or
in front of the bars of the TED; NMFS recommends an installation angle
of 45[deg], relative to the normal horizontal flow of water through the
trawl, to optimize the TED's ability to exclude turtles and debris.
Furthermore, the use of accelerator funnels, which are allowable
modifications to hard TEDs, is not recommended in areas with heavy
amounts of debris or vegetation. Lastly, the webbing flap that is
usually installed to cover the turtle escape opening may be modified to
help exclude debris quickly: the webbing flap can either be cut
horizontally to shorten it so that it does not overlap the frame of the
TED or be slit in a fore-and-aft direction to facilitate the exclusion
of debris. The use of the double cover flap TED will also aid in debris
exclusion.
All of these recommendations represent legal configurations of TEDs
for shrimpers fishing in the affected areas. This action does not
authorize any other departure from the TED requirements, including any
illegal modifications to TEDs. In particular, if TEDs are installed in
trawl nets, they may not be sewn shut.
Due to Hurricanes Katrina and Rita, tow time authorizations have
been granted in the affected area since September 23, 2005. Evidence
from state and Federal investigations indicate that more fishermen are
using TEDs even though tow times are authorized because TEDs are
effective at shooting the debris from the trawl. This indicates that
although there is still much debris in the affected areas, the problem
is dissipating. The end of this authorization will represent five
months of tow time authorizations. This amount of time will have
allowed fishermen to find areas that can be trawled effectively with
TEDS. Therefore, based on the dissipating debris problem and the amount
of time fishermen have had to fish under tow time restrictions NMFS
believes that this will be the last time tow time authorizations will
be required due to debris problems caused by Hurricanes Katrina and Rita.
Alternative to Required Use of TEDs
The authorization provided by this rule applies to all shrimp
trawlers that would otherwise be required to use TEDs in accordance
with the requirements of 50 CFR 223.206(d)(2) who are operating in
inshore and offshore waters affected by Hurricanes Katrina and Rita off
Alabama, westward to the Louisiana/Texas border, and extending offshore
10 nautical miles, through March 20, 2006. Through this temporary rule,
shrimp trawlers may choose either restricted tow times or TEDs to
comply with the sea turtle conservation regulations, as prescribed above.
Alternative to Required Use of TEDs; Termination
The AA, at any time, may withdraw or modify this temporary
authorization to use tow time restrictions in lieu of TEDs through
publication of a notice in the Federal Register, if necessary to ensure
adequate protection of endangered and threatened sea turtles. Under
this procedure, the AA may modify the affected area or impose any
necessary additional or more stringent measures, including more
restrictive tow times, synchronized tow times, or withdrawal of the
authorization if the AA determines that the alternative authorized by
this rule is not sufficiently protecting turtles or no longer needed.
The AA may also terminate this authorization if information from
enforcement, state authorities, or NMFS indicates compliance cannot be
monitored effectively. This authorization will expire automatically at
11:59 p.m., local time, March 20, 2006, unless it is explicitly
extended through another notification published in the Federal Register.
Classification
This action has been determined to be not significant for purposes
of Executive Order 12866.
The AA has determined that this action is necessary to respond to
special environmental conditions to allow effective fishing for shrimp,
while providing adequate protection for endangered and threatened sea
turtles pursuant to the ESA and applicable regulations.
Pursuant to 5 U.S.C. 553(b)(B), the AA finds that there is good
cause to waive prior notice and opportunity to comment on this rule.
The AA finds that unusually high amounts of debris has created ongoing
special environmental conditions that make trawling with TED-equipped
nets impracticable. Prior notice and opportunity to comment are
impracticable and contrary to the public interest in this instance
because providing notice and comment would prevent the agency from
providing the affected industry relief from the effects of Hurricanes
Katrina and Rita in a timely manner.
The AA finds that there is good cause to waive the 30-day delay in
effective date pursuant to 5 U.S.C. 553(d)(3) to provide alternatives
to comply with the sea turtle regulations in a timely manner. Many
fishermen may be unable to operate under the special environmental
conditions created by Hurricanes Katrina and Rita without an
alternative to using TEDs. Providing a 30-day delay in effective date
would prevent the agency from providing the affected industry relief
from the effects of Hurricanes Katrina and Rita in a timely manner. For
the reasons stated above, the AA finds that this temporary rule should
not be subject to a 30-day delay in effective date, pursuant to 5
U.S.C. 553(d)(1).
Since prior notice and an opportunity for public comment are not
required to be provided for this action by 5 U.S.C. 553, or by any other
law, the analytical requirements of 5 U.S.C. 601 et seq. are inapplicable.
The AA prepared an Environmental Assessment (EA) for this rule.
Copies of the EA are available (see ADDRESSES).
Dated: February 16, 2006.
William T. Hogarth,
Assistant Administrator for Fisheries, National Marine Fisheries Service.
[FR Doc. 06-1623 Filed 2-16-06; 1:42 pm]
BILLING CODE 3510-22-S