[Federal Register Volume 59, Number 247 (Tuesday, December 27, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-31517]


[[Page Unknown]]

[Federal Register: December 27, 1994]


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DEPARTMENT OF THE INTERIOR
50 CFR Part 23

RIN 1018-AC72

 

Export of American Alligators Taken in 1995 Through 1997

AGENCY: Fish and Wildlife Service, Interior.

ACTION: Proposed findings and proposed rule.

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SUMMARY: The Convention on International Trade in Endangered Species of 
Wild Fauna and Flora (CITES) regulates international trade in certain 
animal and plant species. As a general rule, exports of animals and 
plants listed on Appendix II of CITES may occur only if a Scientific 
Authority has advised a permit-issuing Management Authority that such 
exports will not be detrimental to the survival of the species and if 
the Management Authority is satisfied that the animals or plants were 
not obtained in violation of laws for their protection. Based on 
documentation presented for consideration by the CITES Parties in 1983, 
the U.S. Fish and Wildlife Service (Service) has determined that the 
American alligator is listed on Appendix II for reasons of similarity 
in appearance under Article II.2(b) of CITES as well as the potential 
threat to the species survival under CITES Article II.2(a).
    This notice announces proposed findings by the U.S. Scientific 
Authority and Management Authority on the export of alligators 
harvested during the 1995-1997 taking seasons from certain States 
previously approved for such export for the 1992-1994 harvest seasons 
and for the State of Arkansas which was previously approved for the 
1994 harvest season. These proposed findings also stipulate that 
monitoring procedures previously established for this species be 
continued.
    In addition, references in the regulation concerning the manner in 
which tags are to be attached to American alligator hides at the time 
of export and the conditions for export of parts and products are being 
clarified.
    The Service requests comments on these proposed findings and 
information on the species involved.

DATES: The Service will consider all information and comments received 
by January 26, 1995 in making its final decision on this proposal. 
State American alligator program reports are due by May 31 of each 
year.

ADDRESSES: Please send correspondence concerning this document to the 
Office of Management Authority, U.S. Fish and Wildlife Service, 4401 N. 
Fairfax Dr., room 420-C, Arlington, Virginia 22203. Materials received 
will be available for public inspection by appointment from 7:45 a.m. 
to 4:15 p.m., Monday through Friday, at the Office of Management 
Authority, 4401 N. Fairfax Dr., room 432, Arlington, VA.

FOR FURTHER INFORMATION CONTACT:
    Scientific Authority: Dr. Charles W. Dane, Office of Scientific 
Authority, Mail Stop: ARLSQ, Room 725, U.S. Fish and Wildlife Service, 
Washington, DC 20240; telephone (703) 358-1708; fax number (703) 358-
2276.
    Management Authority: Carol L. Carson, Office of Management 
Authority, U.S. Fish and Wildlife Service, Room 420-C, 4401 N. Fairfax 
Dr., Arlington, Virginia 22203; telephone (703) 358-2095; fax number 
(703) 358-2280.

SUPPLEMENTARY INFORMATION: Since 1977, the Service has employed the 
rulemaking process to develop and issue decisions on the export of 
certain species under CITES. The reason for this approach is that it is 
more effective to issue general decisions on the export of all 
specimens of a species harvested in a given State and season than to 
issue such decisions separately for each permit application. This is 
especially true for CITES Appendix II species that are frequently 
exported, such as the American alligator. On May 26, 1992 (57 FR 
21896), the Service published rules granting export approval for 
American alligators (Alligator mississippiensis) from specified States 
for the 1992-1994 harvest seasons. Subsequently, based on advice from 
the Office of Scientific Authority and the Office of Management 
Authority, the Service also approved the export of farm-raised American 
alligators from the State of Arkansas for the 1994 harvest season. The 
purpose of this current proposal is to develop a rule that will allow 
the export of legally taken American alligators (hides, meat, parts, 
and products) for the 1995-1997 harvest years from previously approved 
States.

Scientific Authority Findings

    Article II, paragraph 2, of CITES establishes that Appendix II 
shall include:

    (a) All species which although not necessarily now threatened with 
extinction may become so unless trade in specimens of such species is 
subject to strict regulations in order to avoid utilization 
incompatible with their survival; and
    (b) Other species which must be subject to regulation in order 
that trade in specimens of certain species referred to in sub-
paragraph (a) of this paragraph may be brought under effective 
control.

    The American alligator is listed in Appendix II to respond both to 
problems of potential threat to the survival of the species [CITES 
Article II.2(a)] and of the similarity of appearance to other 
crocodilians that are threatened with possible extinction [CITES 
Article II.2(b)]. Article IV of CITES requires that an export permit 
for any specimen of a species included in Appendix II shall only be 
granted when certain findings have been made by the Scientific 
Authority and Management Authority of the exporting country. The 
marking of hides with specified tags, the marking and documentation of 
shipments of meat and parts, and the issuance of export permits 
specifically for American alligator parts and products is considered 
sufficient to address the issue of identification due to similarity in 
appearance between American alligators and other listed crocodilian 
species. Because the alligator is listed partly due to the potential 
threat to its survival based on previous population declines that have 
been reversed in most parts of its range in the United States, the 
Service must determine that allowing exports and thereby stimulating 
harvest will not be detrimental to the survival of the species itself.
    The U.S. Scientific Authority must develop advice on nondetriment 
for the export of Appendix II species in accordance with Section 8A of 
the Endangered Species Act (Act) of 1973, as amended. The Act states 
that the Secretary of the Interior, ``shall base such determinations 
and advice given by him under Article IV of the CITES with respect to 
wildlife upon the best available biological information derived from 
professionally accepted wildlife management practices; but is not 
required to make, or require any State to make, estimates of population 
size in making such determinations or giving such advice.''
    Guidelines developed for Scientific Authority advice on exports of 
American alligator under provisions of CITES Article II.2(a), are 
summarized as follows:

A. Minimum Requirements for Biological Information

    (1) The condition of the population, including trends (the method 
of determination to be a matter of State choice) and population 
estimates where such information is available;
    (2) Total harvest of the species for each harvest season;
    (3) Distribution of harvest; and
    (4) Habitat evaluation.

B. Minimum Requirements for a Management Program

    (1) There should be a controlled harvest with the methods and 
seasons determined by the State;
    (2) All hides, meat, and parts should be registered and marked; and
    (3) Harvest level objectives should be determined annually by the 
State.
    In applying these guidelines, the Service considers the following 
types of information on the conditions of the population: (a) A current 
estimate [if such information is available] of the total number of 
animals in the pre-harvest population derived by appropriate scientific 
censusing methodology; (b) a description of ongoing research being 
conducted to assess the distribution, abundance, or general condition 
of the species in the State with a summarization of results obtained, 
including results of any analysis of age structure or reproductive 
parameters; and (c) an assessment of long-term population trends of the 
species in the State and the relationship of these trends to habitat 
conditions, management practices, harvest pressure, and/or other 
factors.
    Information on anticipated harvest to be considered by the Service 
includes: (a) The number of animals to be harvested [by county or game 
management unit, if data are available at these local levels]; (b) the 
number of alligator hunters expected to be licensed; and (c) the time 
of the harvest season.
    In the case of the alligator, as with most other wild animals, the 
resource is monitored by a variety of techniques that yield information 
used in evaluating the condition of a population. As these data are 
accumulated over time, they reflect trends and call attention to 
changes in the populations. Habitat information, indices of population 
size, age and sex structure, and harvest information are all used to 
evaluate population status. Although the Endangered Species Act 
Amendments of 1982 provided that population estimates are not to be 
required for the approval of export of Appendix II wildlife, if such 
estimates are provided by the States or are otherwise available, they 
will be considered together with information of the types listed above 
in making findings on nondetriment.
    In addition to considering the effect of trade on species or 
populations native to the United States that are being exported, the 
Scientific Authority will also monitor the status of the American 
alligator to: (a) Determine whether treatment of the American alligator 
remains appropriate; and (b) detect any significant downward trends in 
the populations and, where necessary, advise on more restrictive export 
controls in response to these trends. This monitoring and assessment 
will follow the same procedures adopted for other CITES-listed species 
(see 49 FR 590, January 5, 1984). The Service will review information 
on population status and harvest data relevant to the no detriment 
finding process from each export-approved State, as appropriate. When 
indicated by available information and a thorough review of accumulated 
data, a determination can then be made about the treatment of this 
species and whether the management program needs to be adjusted in a 
particular State.
    The status of the American alligator has dramatically improved 
throughout its range since the species was placed under State and 
Federal control. One of the primary reasons for this improvement has 
been the effective management programs administered by State wildlife 
agencies. The Service expects these management programs to continue to 
be effective in conserving the American alligator in the future.
    The export of American alligators taken in the 1992 through 1994 
harvest seasons in certain States was previously approved by the 
Service (57 FR 21896). In that rule, the Service found that current 
information on the population status, management, and harvest available 
from the States included in the rule, along with other information 
collected by the Service, supported a finding that the export of 
American alligators taken in accordance with State regulations in those 
States and in those harvest seasons would not be detrimental to the 
survival of the species in those States approved for export. The 
Service's previous assessment of the status of the alligator under the 
Endangered Species Act was sufficient to support reclassification of 
the species throughout its range from threatened to threatened for 
similarity of appearance. This reclassification was accomplished in 
different parts of its range as the biological status of the alligator 
improved. The following rulemaking documents provide the rationale for 
the removal of threatened and endangered listings: 40 FR 44412, 
September 26, 1975; 42 FR 2071, January 10, 1977; 44 FR 37130, June 25, 
1979; 46 FR 40664, August 10, 1981; 48 FR 46332, October 12, 1983; 50 
FR 25672, June 20, 1985; and 51 FR 19760, June 2, 1986.
    Based upon information available from the previously approved 
States and in consideration of the tagging requirements stipulated by 
the Management Authority, the Service proposes to issue Scientific 
Authority advice in favor of export of alligator hides and parts 
legally harvested in those States during the 1995-97 harvest seasons.

Management Authority Findings

    Exports of Appendix II species are to be allowed under CITES only 
if the Scientific Authority advises that the exports will not be 
detrimental to the survival of the species and if the Management 
Authority is satisfied that the specimens were not obtained in 
contravention of laws enacted for their protection. The Service, 
therefore, must be satisfied that the American alligator hides, meat, 
or products being exported were not obtained in violation of State or 
Federal laws for their protection. For the American alligator, evidence 
of legal take is provided by Service-approved State export tagging and 
container marking programs.
    To assist these State export tagging programs, the Service annually 
contracts for the manufacture and delivery of special CITES animal-hide 
tags for Service-approved, export-qualified States.
    In a Federal Register notice, published on April 24, 1986 (51 FR 
15548), the Service announced the introduction, use, and protection of 
a US-CITES tag symbol. This symbol appears on every Service-approved 
export tag to provide legal evidence of U.S. export approval for 
certain species listed on Appendix II of CITES. Hides marked with tags 
that lack this US-CITES symbol are not legally exportable from the 
United States.
    Guidelines developed for Management Authority findings on State-
managed American alligator export programs, under provisions of CITES 
Article IV.2(a), are summarized as follows:
    (1) Current State alligator trapping, hide tagging, meat and parts 
processing, marking, and shipping regulations must be on file with the 
Office of Management Authority;
    (2) Sample reporting forms, export tag, meat and parts packing 
seal, parts tag, and specifications of the State's standard meat and 
parts package/container must be on file with the Office of Management 
Authority;
    (3) The hide export tag must be durable and permanently locking, 
and must show the US-CITES logo, State of origin, year of take, 
species, and a unique serial number;
    (4) The export tag, meat seal, and parts tag or seal must be 
applied to all hides, meat, or parts within a minimum time after take 
or processing as specified by State law and such time should be as 
short as possible to minimize movement of untagged hides, meat, or 
parts;
    (5) US-CITES tags must be inserted through the hide and permanently 
locked in place using the locking mechanism of the tag and in 
accordance with State requirements; other tags or seals must be 
permanently attached as mandated by the State;
    (6) All American alligator harvesters and processors must be State 
registered;
    (7) All American alligator hide, meat, and parts dealers must be 
State registered;
    (8) All State-registered American alligator harvesters, processors, 
and dealers must make available their American alligator harvest and 
commerce data to the State on at least an annual basis, as specified by 
the State;
    (9) State-registered American alligator dealers and State licensed 
harvesters authorized to attach export tags must account for tags 
received and must return unused tags to the State within a time 
specified by the State after the taking season closes; and
    (10) When manufactured hide products are to be exported from the 
United States, the CITES export tags that were removed from the hides 
contained in the products must be surrendered to the Service prior to 
export.
    Based upon: (1) The finding of nondetriment by the Scientific 
Authority, and (2) information available from the previously export-
approved States, the Service proposes to issue Management Authority 
approval for the export of American alligators legally harvested during 
1995-1997 from those States previously approved for such export, 
including Arkansas.

Multiyear Findings

    The Service has monitored existing State programs for the American 
alligator in most of the previously approved States for many years and 
expects these States will continue to satisfy CITES requirements. 
States seeking for the first time to establish a harvest program for 
alligators should apply for CITES export approval no later than January 
2 of the year before they plan to initiate such a program. To ensure 
that export-approved States maintain successful programs and that 
export is not detrimental to the survival of the species, the Service 
plans to continue annual monitoring of State management and export 
marking programs through evaluation of State annual reports and export 
reports from U.S. ports. Annual State program reports should be 
provided to the Office of the Management Authority (address given 
above) for review no later than May 31 of each year.

Proposed Findings

    The Service proposes to find that the status of the species and 
State programs is such that the 1995-1997 harvests of American 
alligators for export will not be detrimental to the survival of the 
species. Accordingly, the Service proposes to approve exports of 1995-
1997 harvested alligators from the States previously approved for 
export, including Arkansas, on the grounds that both Scientific 
Authority and Management Authority export requirements have been 
satisfied.

Comments Solicited

    The Service requests comments on these proposed findings. Final 
findings will take into consideration the comments and any additional 
information received, and such consideration may lead to final findings 
that differ from this proposal.
    The Service requests information on environmental or economic 
impacts and effects on small entities (including small businesses, 
small organizations, and small governmental jurisdictions) that would 
result from findings for or against export approval. This information 
may aid the Service in further evaluating the conclusions stated below. 
This proposal is issued under the authority of the Endangered Species 
Act of 1973 as amended (16 U.S.C. 1531 et seq.; 87 Stat. 884, as 
amended) and was prepared by Carol L. Carson, Office of Management 
Authority.

Effects of the Rule and Required Determinations

    The Service has determined that these proposed findings are not a 
major Federal action significantly affecting the quality of the human 
environment under the National Environmental Policy Act (42 U.S.C. 
4321-4347), and therefore the preparation of an environmental impact 
statement is not required.
    This rule was not subject to Office of Management and Budget review 
under Executive Order 12866. For the 1995-97 harvest years, the Service 
analyzed the impacts and again concluded that the 3-year rule was not a 
major rule and did not have significant economic effects on a 
substantial number of small entities as outlined under the Regulatory 
Flexibility Act (5 U.S.C. 601 et seq.). Because the proposed rule 
treats exports on a State-by-State basis and proposes to approve export 
in accordance with State programs, the rule would have little effect on 
small entities in and of itself. The proposed rule would allow 
continued international trade in American alligators in accordance with 
CITES, and it does not contain any Federalism impacts as described in 
Executive Order 12612.
    It also has been determined that this proposed rule does not 
contain information collection requirements that require approval by 
OMB under 44 U.S.C. 3501 et seq.

List of Subjects in 50 CFR Part 23

    Endangered and threatened species, Exports, Imports, Treaties.

PART 23--ENDANGERED SPECIES CONVENTION

    Accordingly, the Service proposes to amend Part 23 of Title 50, 
Code of Federal Regulations, as set forth below:
    1. The authority citation for Part 23 continues to read as follows:

    Authority: Convention on International Trade in Endangered 
Species of Wild Fauna and Flora, 27 U.S.T. 108; and Endangered 
Species Act of 1973, as amended (16 U.S.C. 1531 et seq.).


Sec. 23.57  [Amended]

    2. Section 23.57 American alligator (Alligator mississippiensis), 
paragraph (a) is proposed to be revised as follows:
    (a) 1979-1997 harvests (wild and farm-raised for each year unless 
noted).

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                                                    AL      AR      FL      GA      LA      MS      SC      TX  
----------------------------------------------------------------------------------------------------------------
1979............................................      -       -       +       -       +       -       -       - 
1980............................................      -       -       +       -       +       -       -       - 
1981............................................      -       -       +       -       +       -       -       - 
1982............................................      -       -       +       -       +       -       -       - 
1983............................................      -       -       +       -       +       -       -       - 
1984............................................      -       -       +       -       +       -       -       + 
1985............................................      -       -       +       -       +       -       -       + 
1986............................................      -       -       +       -       +       -       -       + 
1987............................................      -       -       +       -       +       -       -       + 
1988............................................      -       -       +       +       +       -       +       + 
1989............................................      +       -       +       +       +       +       +       + 
1990............................................      +       -       +       +       +       +       +       + 
1991............................................      +       -       +       +       +       +       +       + 
1992............................................      +       -       +       +       +       +       +       + 
1993............................................      +       -       +       +       +       +       +       + 
1994............................................      +       F       +       +       +       +       +       + 
1995............................................      +       F       +       +       +       +       +       + 
1996............................................      +       F       +       +       +       +       +       + 
1997............................................      +       F       +       +       +       +       +       + 
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+ = export approved.                                                                                            
F = export approved for farm-raised only.                                                                       
- = export not approved.                                                                                        

    3. Section 23.57 American alligator (Alligator mississippiensis), 
paragraph (b) introductory text and paragraphs (6)(1), (2), (4) and (5) 
are proposed to be revised as follows:
    (b) Condition on export: (1) Each hide must be clearly identified 
by a durable, permanently locking Convention export tag bearing a 
legend showing the US-CITES logo, State of origin, species, season of 
take, and a unique serial number. The tag must be inserted through the 
hide and permanently locked in place using the locking mechanism of the 
tag and in accordance with State requirements. Hides with broken tags 
may not be exported. Upon submission of documentation to show legality 
of the hide, broken tags may be replaced with CITES replacement. Hides 
with valid CITES replacement tags are eligible for export.
    (2) US-CITES export tags that were removed from the hides used to 
manufacture products to be exported must be surrendered to the Service 
prior to the export of those products.
    (3) * * * * *
    (4) Large individual parts shall have a parts tag permanently 
attached. Small parts such as tails, throats, feet, or backstrips shall 
be packed in transparent, sealed containers clearly marked with a parts 
tag. Parts tags shall supply at a minimum the State of origin, species, 
original hide export tag number, and weight of the parts in the 
container.
    (5) American alligator skulls shall be marked as required by State 
law. This marking shall include, at a minimum, reference to a valid US-
CITES tag number.

    Dated: December 8, 1994.
George T. Frampton, Jr.,
Assistant Secretary for Fish and Wildlife and Parks.
[FR Doc. 94-31517 Filed 12-23-94; 8:45 am]
BILLING CODE 4310-55-P