[Federal Register Volume 60, Number 161 (Monday, August 21, 1995)]
[Rules and Regulations]
[Pages 43405-43408]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-20461]



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DEPARTMENT OF THE INTERIOR

Fish and Wildlife Service

50 CFR Part 23

RIN 1018-AC72


Export of American Alligators Taken in 1995 Through 1997

AGENCY: Fish and Wildlife Service, Interior.

ACTION: Final 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).
    On December 27, 1994, the Service published a notice (59 FR 66510) 
proposing to grant export approval for legally taken American 
alligators, alligator meat, parts, and products from previously 
approved States for the 1995-1997 harvest seasons.
    This document announces the final findings and rule by the U.S. 
Scientific Authority and Management Authority that approve the export 
of American alligators harvested during the 1995-1997 harvest 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. This rule also stipulates 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 (full skins) 
at the time of export and the conditions for export of parts and 
products have been clarified.

EFFECTIVE DATE: August 21, 1995.

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 announcement and rule is to 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 are considered 
sufficient to address the issue of identification due to similarity of 
appearance between American alligators and other listed crocodilian 
species. Because the American 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; 

[[Page 43406]]

    (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 American 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 American 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 American 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.
    The Service's Office of Scientific Authority finds that current 
information on population status, management, and harvest levels 
relative to all the States in question fully supports a finding that 
the export of American alligators taken in accordance with Service-
approved State regulations during the 1995-1997 harvest seasons will 
not be detrimental to the survival of the species in the States 
receiving export approval. Tagging of hides and the sealing and marking 
of meat and parts by Service-approved States of origin and 
documentation of shipments by the U.S. Management Authority provide 
assurance that export will not reduce the effectiveness of CITES in 
controlling trade in other species of crocodilians.

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; 

[[Page 43407]]

    (2) Sample reporting forms, export tag, meat 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 packing seal, and parts tag 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.
    The Service's Management Authority has reviewed the American 
alligator export tagging programs of all previously approved States and 
has found that these programs fully meet the guidelines listed above.
    The Service hereby approves exports of 1995-1997 harvested American 
alligators, hides, meat, and parts from the States receiving export 
approval on the grounds that both Scientific Authority and Management 
Authority export requirements are satisfied.

Multi-Year 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 
American 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.
    This rule extends export approval for the States that were approved 
for export in previous years, including Arkansas which was approved for 
1994, for the 1995-1997 harvest seasons. South Carolina's request to 
expand its nuisance alligator program to include the take of alligators 
from the wild on private lands under a State management system has been 
approved by letter for 1995. Extension of this approval beyond 1995 
will be published separately in the Federal Register as a proposed 
rule.
    The findings announced in this notice are effective immediately. It 
is the Service's opinion that a delay in the effective date of the 
regulations after this final rulemaking is published could adversely 
impact the species by preventing the international marketing of the 
hides and meat (where commercial harvest is an important part of the 
State conservation programs) thereby reducing the incentive for takers 
or dealers to comply with State requirements in the approved States. 
The Service, therefore, finds that ``good cause'' exists, within the 
terms of 5 U.S.C. 553(d)(3) of the Administrative Procedure Act, for 
these regulations to take effect immediately under 5 U.S.C. 553(d)(1).

Public Comment

    One written comment, from the State of Louisiana, was received 
during the comment period. The State agrees with the minor changes that 
were made to the previous rule and suggested that in Sec. 23.57.3(b)(4) 
the following sentence be deleted: ``Large individual parts shall have 
a parts tag permanently attached.'' With the deletion of this sentence, 
the rule would not be inconsistent with the requirements recently 
incorporated into the CITES Universal Tagging System for the 
Identification of Crocodilians. Therefore, the Service agrees with the 
State of Louisiana and has deleted the sentence.

Effects of the Rule and Required Determinations

    The Service has determined that this rule is 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 rule treats exports 
on a State-by-State basis and approves export in accordance with State 
programs, the rule would have little effect on small entities in and of 
itself. The 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 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.).

    2. In Sec. 23.57, paragraph (a) is revised as follows:


Sec. 23.57  American alligator (alligator mississippiensis).

* * * * *
    (a) 1979-1997 harvests (wild and farm-raised for each year unless 
noted).

                                                                                                                

[[Page 43408]]
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                                     AL        AR        FL        GA        LA        MS        SC        TX   
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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), 
the heading of paragraph (b) and paragraphs (b)(1), (2), (4), and (5) 
are revised as follows:
* * * * *
    (b) Condition on initial export from the United States. (1) Each 
hide (full skin) must be clearly identified by a durable, permanently 
locking Convention export tag bearing a legend showing the US-CITES 
logo, State of origin, species, year 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. Prior to export and upon submission of documentation to show 
legality of the hide, broken tags may be replaced with CITES 
replacement tags. 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.
* * * * *
    (4) 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: July 11, 1995.
George T. Frampton, Jr.,
Assistant Secretary for Fish and Wildlife and Parks.
[FR Doc. 95-20461 Filed 8-18-95; 8:45 am]
BILLING CODE 4310-55-P