[Federal Register Volume 60, Number 189 (Friday, September 29, 1995)]
[Proposed Rules]
[Pages 50530-50539]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-24319]



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DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

50 CFR Part 227 and 425

DEPARTMENT OF THE INTERIOR

Fish and Wildlife Service

50 CFR Part 17 and 425

RIN 1018-AD 12


Endangered and Threatened Species; Proposed Threatened Status for 
a Distinct Population Segment of Anadromous Atlantic Salmon (Salmo 
salar) in Seven Maine Rivers

AGENCIES: National Marine Fisheries Service (NMFS), National Oceanic 
and Atmospheric Administration (NOAA), Commerce; and Fish and Wildlife 
Service (FWS), Interior.

ACTION: Proposed rule.

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SUMMARY: The NMFS and the FWS (collectively, the Services) have 
completed a status review of U.S. Atlantic salmon populations and 
identified a distinct population segment (DPS) in seven Maine rivers. 
Atlantic salmon in these rivers are likely to become endangered in the 
foreseeable future and therefore are being proposed for listing as 
threatened pursuant to the Endangered Species Act of 1973 (Act). This 
proposed rule includes joint regulations which apply all prohibitions 
of 50 CFR 17.31 to the DPS, but allows exceptions for incidental take 
under sections 4(d) and 10 of the Act. The special rule allows for a 
state plan, approved by the Services, to define the manner in which 
certain activities could be conducted without violating the Act. If 
this proposed listing is finalized, the protective measures of the Act 
will extend to the Atlantic salmon in the seven rivers, and a recovery 
plan will be prepared and implemented.

DATES: Comments from all interested parties must be received by 
December 28, 1995. Public hearing requests must be received by November 
13, 1995.

ADDRESSES: Comments and materials concerning this proposed rule and 
requests for public hearings should be sent to the Chief, Division of 
Endangered Species, FWS, 300 Westgate Center Drive, Hadley, 
Massachusetts 01035, or the Chief, Habitat and Protected Resources 
Division, NMFS, 1 Blackburn Drive, Gloucester, Massachusetts 01930.

FOR FURTHER INFORMATION CONTACT: Paul Nickerson at 413-253-8615 or Mary 
Colligan at 508-281-9116.

SUPPLEMENTARY INFORMATION:

Background

    In October and November 1993, the Services received a petition 
under the Act to list anadromous Atlantic salmon as endangered. The 
Services published a notice of finding on January 20, 1994 (59 FR 
3067), stating that the petition presented substantial information 
indicating that the requested action may be warranted. The notice also 
requested information from the public. A biological review team (Team) 
comprised of staff from the Services compiled and analyzed all 
available scientific information pertaining to the status of anadromous 
Atlantic salmon in the United States. The Team prepared a report 
entitled ``Status Review for Anadromous Atlantic Salmon in the United 
States, January 1995'' (Status Review). The Status Review provides 
detailed information and references used as the basis for this proposed 
rule. This Status Review was summarized in a March 17, 1995, finding 
(60 FR 14410) and is available upon request (see ADDRESSES). Further 
details from the Status Review are provided below. In the March 17, 
1995, finding, the Services stated that they would promptly publish a 
proposed rule with appropriate listing actions.

Life History

    Anadromous Atlantic salmon have a relatively complex life history 
that extends from spawning and juvenile rearing in freshwater rivers to 
extensive feeding migration in the high seas. As a result, Atlantic 
salmon have several distinct phases in their life history that are 
identified by specific behavioral and physiological changes. Adult 
Atlantic salmon ascend the rivers of New England beginning in spring, a 
migration that peaks in June and continues into fall. Spawning occurs 
in late October through November. Good spawning habitat has a gravel 
substrate and adequate water circulation to keep the eggs well 
oxygenated. Female anadromous Atlantic salmon produce between 1,500 and 
1,800 eggs per kilogram (2.2 pounds) of body weight; on average each 
female Maine Atlantic salmon produces 7,200 eggs. Eggs hatch in late 
March or April and the resulting alevins remain in the redd for about 
six weeks and are nourished by their yolk sac. When the alevins emerge 
from the gravel about mid-May and begin feeding, they are referred to 
as fry. Fry become parr as vertical bars become visible on the sides of 
their bodies. In spring, when the parr are two or three years of age 
and 12.5 centimeters (cm) to 15 cm (5 to 6 inches) long, they undergo 
smoltification, a process where morphological and physiological changes 
prepare the smolt for the transition from fresh to salt water. Most 
smolts in New England rivers migrate to sea in May and begin their 
ocean feeding migration.
    The marine life history of Atlantic salmon of U.S. origin is not as 
well understood as the freshwater phase. Scientists have discovered 
correlations between natural mortality in the marine environment and 
abiotic factors, particularly sea surface temperature. Atlantic salmon 
of U.S. origin are highly migratory, undertaking long marine migrations 
from the mouths of U.S. rivers to the northwest Atlantic Ocean where 
they are distributed seasonally over much of the region. Upon entry 
into the nearshore waters of Canada, the U.S. post-smolts become part 
of a mixture of stocks of Atlantic salmon from various North American 
streams. Data from commercial harvest indicate that post-smolts 
overwinter in the southern Labrador Sea and in the Bay of Fundy. Direct 
sampling during the winter months is needed to better understand post-
smolt Atlantic salmon distribution in the North Atlantic. Most Atlantic 
salmon of U.S. origin spend two winters in the ocean before returning 
to fresh water for spawning. Those that return after only one year at 
sea are called grilse.

Consideration as a ``Species'' Under the Act

    The Act defines species as ``any species of fish or wildlife or 
plants, and any distinct population segment of any species of 
vertebrate fish or wildlife that interbreeds when mature.'' This 
definition allows for the recognition of distinct population segments 
at levels below taxonomically recognized species or subspecies. To 
qualify as a DPS, a population (or group of populations) of indigenous 
Atlantic salmon must be reproductively isolated from conspecific 

[[Page 50531]]
populations and must be biologically significant.
    The Team determined that the Atlantic salmon populations in the 
Sheepscot, Ducktrap, Narraguagus, Pleasant, Machias, East Machias, and 
Dennys rivers, are, as a group, reproductively isolated, and therefore, 
discrete. These populations are also, as a group, biologically 
significant. The Services are proposing that these seven populations be 
listed as one DPS but that management be conducted on a watershed 
basis. Since the persistence of Atlantic salmon in the Kennebec River, 
Penobscot River, Tunk Stream, and St. Croix River and their link to 
native populations warrant further study, these populations were 
designated as category 2 candidate species by FWS and candidate species 
by NMFS (60 FR 14410, March 17, 1995). Since that time, the FWS has 
clarified that only species for which it has sufficient information on 
biological vulnerability and threat(s) to support issuance of a 
proposed listing are designated as candidate species. This definition 
is synonymous with the FWS' former category 1 candidate species. Former 
category 2 species are regarded by the FWS as species of concern, and 
are not, at present, candidates for listing. NMFS maintains its 
candidate species list, however, NMFS and FWS plan to issue joint 
guidance on candidate species soon. Specific information needs for 
these four rivers are identified below under Available Conservation 
Measures.
    A critical factor in determining the significance of the river 
populations of U.S. Atlantic salmon is the continuous persistence of a 
substantial component of native stock reproduction. If the documented 
absence of wild Atlantic salmon from natal habitat were to occur for at 
least two generations (12 years), this would suggest the total loss of 
the river's native population even under the most conservative 
approach. Such a gap has not occurred in the DPS rivers. While it is 
unlikely that U.S. Atlantic salmon exist in a genetically pure native 
form in any of the DPS rivers, these stocks represent a significant 
component of the species' genetic legacy.
    Naturally reproducing populations of Atlantic salmon in U.S. rivers 
are substantially reproductively isolated from those in Canada. Within 
the United States, Atlantic salmon populations exhibit strong fidelity 
to natal streams. Although there is some evidence of straying, 
recolonization from adjacent watersheds appears to be minimal. Gene 
flow between wild populations, or stock transfers, was determined not 
to have been sufficient to have eliminated all historic differences. As 
a group, the seven populations composing the DPS meet the criterion of 
reproductive isolation.
    In salmonids, adaptations to local ecosystems are important to the 
survival of populations and the survival of the species throughout its 
range. An examination of U.S. populations of Atlantic salmon provides 
evidence of their distinctness from stocks in Canada and northern 
Europe. Historically, adult spawners in U.S. rivers have been 
predominantly 2-sea-winter fish, whereas many Canadian and European 
stocks return predominantly after 1 year at sea. The riverine habitat 
occupied by U.S. Atlantic salmon is distinctive in that it is located 
at the southern extent of the range of the species in North America. 
U.S. rivers produce smolts that are younger than those produced in 
rivers at the northern extreme of the range. Atlantic salmon have 
persisted in the Sheepscot, Ducktrap, Narraguagus, Pleasant, Machias, 
East Machias, and Dennys rivers, and, consequently, represent the last 
known wild remnant of U.S. Atlantic salmon. All of these factors 
indicate that the DPS is discrete and biologically significant.

Distribution and Abundance

    The original range of Atlantic salmon in the United States was from 
the Housatonic River in Connecticut, north to U.S. tributaries of the 
St. Johns River in New Brunswick, Canada. The historic Atlantic salmon 
run in the United States has been estimated to have approached 500,000 
fish.
    The species began to disappear from U.S. rivers 150 years ago and 
currently only remnant populations occur in a limited number of rivers 
in Maine. Construction of hundreds of dams blocked salmon migration and 
reduced spawning habitat to a fraction of that available historically. 
Water pollution and overexploitation further reduced the abundance of 
Atlantic salmon. Indigenous Atlantic salmon in rivers south of the 
Kennebec River were extirpated by the mid-1800's. In addition, some 
populations north of the Kennebec River were also extirpated; most of 
these were in small rivers with less than 1 hectare (2.5 acres) of 
available nursery habitat. Beginning in the mid-1800's and continuing 
to the present time, numerous restoration efforts were undertaken. The 
Connecticut and Merrimack rivers provided nearly 40 percent of historic 
U.S. Atlantic salmon habitat. These rivers are currently the focus of 
restoration efforts using nonindigenous stocks, and extensive efforts 
are being undertaken to provide access to historic habitat.
    The North American Salmon Working Group's method for estimating the 
escapement goal for adequate egg deposition for each river was used. 
Thus, an escapement goal was determined for each river and the return 
calculated as a percentage of the escapement goal. Throughout the past 
24 years, the Dennys and Narraguagas rivers have had the best returns 
relative to available habitat, averaging 20 percent of escapement goal. 
The Pleasant, Sheepscot, and Machias rivers have had returns that 
averaged between 10 and 12 percent of escapement goal. However, recent 
downward trends in abundance have put most rivers at less than 10 
percent of their respective escapement goals. Only the Narraguagas 
River has exceeded 10 percent in the past seven years.
    The combination of low relative abundance and low numbers relative 
to spawning requirements demonstrates that the DPS is likely to become 
endangered within the foreseeable future throughout all or a 
significant portion of its range.

Summary of Factors Affecting the Species

    Section 4 of the Act and regulations promulgated to implement the 
listing provisions of the Act (50 CFR part 424) set forth the 
procedures for adding species to the Federal list. Section 4 also 
requires that listing determinations be based solely on the best 
scientific and commercial data available, without reference to possible 
economic or other impacts of such determinations. A species may be 
determined to be endangered or threatened due to one or more of the 
five factors described in section 4(a)(1) of the Act. These factors and 
their application to the Atlantic salmon DPS are:

A. The Present or Threatened Destruction, Modification, or Curtailment 
of its Habitat or Range

    The construction of dams with either inefficient or non-existent 
fishways was a major cause for the decline of U.S. Atlantic salmon. 
Dams adversely impact Atlantic salmon by impeding both their upstream 
and downstream migration, increasing predation, altering the chemistry 
and flow pattern of rivers, increasing water temperature, and reducing 
available flow downstream. Currently, there are no dams on rivers in 
the DPS that have the potential to adversely impact the species. The 
Machias and Dennys rivers have natural falls that may partially bar 
salmon migration at certain flows. Beaver dams 

[[Page 50532]]
and debris dams have been documented on many of the rivers within the 
DPS. Typically, these are partial obstructions and are ephemeral in 
nature.
    One of the predominant land uses of central and northern coastal 
Maine watersheds is the growth and harvest of forest products. Forest 
management practices can cause numerous short- and long-term negative 
impacts to Atlantic salmon. Deforestation alters the water retention of 
watersheds resulting in high seasonal runoff followed by inadequate 
river flows. The removal of riparian vegetation reduces shading and 
increases water temperature. Poor logging practices and road 
construction adjacent to streams results in the deposition of 
substantial loads of woody debris and silt into waterways. Insecticides 
used to control insect infestations and herbicides used to manage 
competing vegetation enter waterways and adversely affect salmon. While 
historic forest practices have had harmful effects on Atlantic salmon 
in certain watersheds, numerous state and Federal laws now exist to 
prevent adverse impacts to Atlantic salmon and other aquatic species. 
Current forest practices are not considered a major threat to Atlantic 
salmon.
    Another significant land use in eastern Maine watersheds is lowbush 
blueberry agriculture. Water extraction and diversion from rivers and 
streams for blueberry cultivation can make habitat unsuitable for 
Atlantic salmon. The herbicide hexazinone (velpar) is applied to 
blueberry fields to control competing vegetation. Blueberry barrens are 
also treated with fungicides and insecticides to prevent disease and 
control insect pests. Such chemical spraying can cause direct mortality 
of juvenile Atlantic salmon or adversely affect salmon if chemicals 
drain into waterways and reduce populations of aquatic insects, an 
important food source for salmon. With assistance from the Cooperative 
Extension Services of the University of Maine and the Natural Resource 
Conservation Service, numerous measures are being implemented to reduce 
the potential for contamination of waterways from blueberry 
cultivation. Current agricultural practices are not considered a major 
threat to Atlantic salmon.
    Many of the eastern Maine rivers have deposits of peat within their 
watersheds. Commercial peat mining has the potential to adversely 
affect salmon habitat through the release of peat fibers, arsenic, and 
other chemical residues present in peat deposits. Further study is 
necessary to determine the impacts, if any, of peat mining on Atlantic 
salmon and Atlantic salmon habitat.

B. Overutilization for Commercial, Recreational, Scientific, or 
Educational Purposes

    Historically, the marine exploitation of U.S.-origin Atlantic 
salmon occurred primarily in foreign fisheries. U.S.-origin Atlantic 
salmon have been documented in the harvests of West Greenland, New 
Brunswick, Nova Scotia, Newfoundland, and Labrador fisheries. The 
Newfoundland and Labrador fisheries constituted the majority of the 
harvest and intercepted the highest percentages of U.S.-origin Atlantic 
salmon. In the absence of West Greenland and Canadian interception 
fisheries, returns of U.S. Atlantic salmon could potentially increase 
two-fold. In Canada, a 5-year moratorium is in place in Newfoundland 
and licenses are being purchased by the government. The Labrador 
fishery is now managed by quotas, and the 1993 quota represents a 
reduction of 92 percent from that of the 1990 quota level. In 1982, the 
North Atlantic Salmon Conservation Organization (NASCO) was formed for 
the purpose of managing salmon through a cooperative program of 
conservation, restoration and enhancement of North Atlantic stocks. 
NASCO accepted an agreement in 1993 that set quotas on the harvest off 
West Greenland with the goal of reaching target spawning escapements 
for North American stocks. During the next three years of the 
management plan, the number of spawners needed to sustain North 
American stocks of Atlantic salmon (194,000) will be protected by 
adjusting the West Greenland quota.
    In 1987 the New England Fishery Management Council prepared a 
Fishery Management Plan (FMP) to establish explicit U.S. management 
authority over all Atlantic salmon of U.S. origin in Federal waters. 
The FMP prohibits the possession of Atlantic salmon in the exclusive 
economic zone, the area between 3 and 200 miles off the U.S. coastline. 
During the 1970s, recreational fishermen were harvesting as much as 15 
to 25 percent of the Atlantic salmon returning annually to home waters. 
Currently state law allows only a catch and release fishery for 
Atlantic salmon, and no salmon fishing is authorized on the Pleasant 
River. Multi-sea-winter salmon incur some mortality from catch-and-
release fishing and parr are vulnerable to incidental hooking mortality 
or illegal harvest by trout anglers. Poaching also poses a serious 
threat to depressed populations of Atlantic salmon in New England 
rivers.

C. Disease or Predation

    During their various life stages, Atlantic salmon are preyed upon 
by numerous species of fish, birds, and mammals and also compete with 
other species of fish. Major freshwater predators on Atlantic salmon 
include brook trout, brown trout, eel, burbot, northern pike, chain 
pickerel, smallmouth bass, belted kingfisher, heron, common and red-
breasted merganser, osprey, herring and greater black-backed gull, 
otter and mink. Documented predators in the estuarine and marine 
environments include striped bass, shark, skate, ling and Atlantic cod, 
pollock, whiting, garfish, double-crested cormorant, European 
cormorant, harbor seal, gray seal, harp seal, and ringed seal. The 
effects and magnitude of competition and predation in the riverine, 
estuarine, and marine environments are not known.
    Atlantic salmon are susceptible to a number of diseases and 
parasites that can result in high mortality. Freshwater external 
parasites of Atlantic salmon are the gill maggot, freshwater louse, 
leaches, and the skin parasite Gyrodactylus salaris, while internal 
parasites include flukes, tapeworms, spiny-headed worms and roundworms. 
Ocean parasites include the sea louse and sea lamprey. Atlantic salmon 
are susceptible to numerous bacterial, viral and fungal diseases, 
including furunculosis, bacterial kidney disease and vibriosis. 
Disease-related mortality is primarily documented for hatcheries and 
aquaculture facilities. Disease epizootics in wild salmon are uncommon. 
In New England, furunculosis is the only known source of disease-
related mortality in wild Atlantic salmon.

D. Inadequacy of Existing Regulatory Mechanisms

    Many Federal and state laws and programs have affected the 
abundance, health and survival of anadromous Atlantic salmon 
populations in the United States. However, they have not prevented the 
decline of the species. The effectiveness of certain existing laws and 
regulations, which are summarized in the status review, could be 
strengthened by more stringent implementation and enforcement. 
Aquaculture facilities are located within 20 kilometers (km) (12 miles) 
of the mouths of five of the rivers within the DPS. Atlantic salmon 
that have been released or that have escaped from aquaculture pens are 
known to have entered some of these rivers. The escape of fish from 
Atlantic salmon aquaculture operations could pose a threat to the 

[[Page 50533]]
genetic integrity of Atlantic salmon within the DPS. In addition, 
concentrations of aquaculture salmon increase the vulnerability of wild 
stocks to disease. Also, escape of juvenile Atlantic salmon from nearby 
fish hatcheries may cause a genetic or disease threat to wild salmon.

E. Other Natural or Manmade Factors Affecting its Continued Existence

    Scientific evidence suggests that low natural survival in the 
marine environment is a major factor contributing to the decline of 
Atlantic salmon throughout North America. Recent research indicates 
that major seasonal events influence post-smolt survival of Atlantic 
salmon. It appears that survival of the North American stock complex of 
Atlantic salmon is at least partly explained by sea surface water 
temperature, during the period when Atlantic salmon concentrate in 
winter months in habitat at the mouth of the Labrador Sea and east of 
Greenland. Until more direct observation can be made on the marine 
ecology of post-smolts during the winter, the exact mode of mortality 
will be unknown. Currently, researchers speculate that a combination of 
factors related to slow growth and increased predation contribute to 
marine mortality.
    Potential genetic impacts of hatchery practices include inbreeding 
depression, outbreeding depression and domestication. Potential 
ecological impacts of hatchery practices include competition and 
predation, displacement of wild fish, altered migratory and spawning 
behavior, and disease transfer. The practice of stocking fry 
transferred from other rivers may have exacerbated the decline of the 
wild population by displacing wild fish. For six of the seven rivers, 
the average percentage of the run that was of natural origin (wild) was 
higher during years not influenced by the stocking of fry transferred 
from other rivers. However, the Services do not believe that stock 
transfers in the DPS rivers have eliminated all historic 
characteristics of wild Atlantic salmon. Although past stocking 
practices may have contributed to the decline of Atlantic salmon in the 
seven rivers, the Services are committed to ensuring that future 
hatchery practices contribute to recovery of each river population. Use 
of river-specific fry stocking on the Penobscot River has boosted the 
percentage of natural origin fish and is a tool for recovery of the DPS 
rivers.
    In summary, there are basically three major factors which continue 
to threaten the continued survival of Atlantic salmon within the DPS--
poaching, low natural survival of fish during the first winter at sea, 
and potential impacts from Atlantic salmon aquaculture operations and 
fish hatcheries to the genetic integrity and disease vulnerability of 
the DPS.

Basis for Determination

    Section 4(b)(1)(A) of the Act states that determinations required 
by the Act will be made solely on the basis of the best scientific and 
commercial data available after conducting a review of the status of 
the species and after taking into account those efforts, if any, being 
made by any State or foreign nation, or any political subdivision of a 
State or foreign nation, to protect such species, whether by predator 
control, protection of habitat and food supply, or other conservation 
practices, within any area under its jurisdiction, or on the high seas. 
The status of the populations of Atlantic salmon in these seven rivers 
was analyzed by looking at historic and current angler catch, trap 
data, and redd counts, all of which are experiencing a downward trend. 
Then, the escapement goal for each river was calculated by estimating 
the total number of adults that would be required to fully seed the 
potential habitat. The documented return to these seven rivers was then 
compared to the escapement goal to arrive at a comparable measure of 
the status of the stock. Recent downward trends in abundance have 
placed all of the rivers at less than 10 percent of their escapement 
goals, with the exception of the Narraguagus which in recent years has 
ranged from 6 to 19 percent. The combination of low relative abundance 
and the low numbers relative to escapement goals indicates that these 
populations are in peril.
    The second step was then to examine efforts currently being 
undertaken on behalf of the species. There are numerous measures 
underway to prevent the loss of any of the river populations of 
Atlantic salmon within the DPS. Collectively, these measures have the 
potential to reduce the likelihood of extinction and enable the 
Services to propose listing the DPS as threatened rather than 
endangered. This designation includes all wild and river specific 
hatchery stock of DPS origin. For purposes of delisting, the DPS is 
composed of wild fish and hatchery-reared fish that have returned to 
spawn naturally and successfully in their river of origin. If these 
measures are not continued or recent downward trends in abundance are 
not reversed, then the DPS may reach the point of being in danger of 
extinction and the designation would have to be changed to endangered. 
Actions underway include the following:
    1. Continued development of river specific populations for 
broodstock and stocking in subsequent years. Currently stocks exist for 
five of the seven rivers at the Craig Brook National Fish Hatchery.
    2. Progeny are being outplanted to specific rivers. In 1995, over 
100,000 fry will be stocked into the Dennys, Narraguagus, and Machias 
rivers.
    3. The National Biological Service is conducting a comprehensive 
genetic study of Atlantic salmon populations throughout North America 
to identify differences in river populations and to compare wild and 
hatchery stock.
    4. In 1993, the West Greenland Commission of the NASCO accepted the 
West Greenland Fishery Regulatory Measure. This agreement resulted in 
the setting of quotas with the goal of reaching target spawning 
escapements for North American stocks.
    5. A private-State-Federal task force has been established to make 
recommendations on how to reduce threats to wild Atlantic salmon posed 
by nearby aquaculture operations.
    6. An intensive study of the population dynamics and the condition 
of the freshwater habitat of Atlantic salmon in the Narraguagus River 
is ongoing. Key objectives include the following: estimate the number 
of adults returning to the river; determine the level of effort 
necessary to estimate the number of parr; inventory habitat; determine 
the abundance and diversity of macroinvertebrates; and monitor trends 
in water quality.
    7. NMFS is conducting research on the early marine life history of 
Atlantic salmon populations in the State of Maine's nearshore and 
marine waters. The key objective of the study is to better understand 
the behavior and feeding relationships of post-smolts during their 
first few weeks at sea.
    8. Recent research conducted by the NMFS Northeast Fisheries 
Science Center in coordination and participation with the International 
Council for the Exploration of the Seas, indicates that major seasonal 
events influence post-smolt survival. Additional research is ongoing to 
identify the processes involved.
    9. A number of private land management agencies in Downeast Maine 
have formed a non-profit entity called Project SHARE (Salmon Habitat 
and River Enhancement). The group, which includes major forest and 
agriculture industry representatives, is committed to improving 
freshwater habitat for the Atlantic salmon in eastern Maine.

[[Page 50534]]

    10. The State of Maine, FWS, and the National Fish and Wildlife 
Foundation have joined to fund habitat monitoring and improvement 
projects in the rivers, including spawning barrier removal, replacement 
of water control structures, temperature and water quality monitoring, 
and riparian zone protection and rehabilitation.

Proposed Determination

    The Act defines an endangered species as any species in danger of 
extinction throughout all or a significant portion of its range, and a 
threatened species as any species likely to become an endangered 
species within the foreseeable future throughout all or a significant 
portion of its range. Section 4(b)(1)(a) of the Act requires that 
determinations regarding whether any species is threatened or 
endangered be based solely on the best scientific and commercial 
information available after conducting a review of the status of the 
species and after taking into account those efforts, if any, being made 
to protect such species.
    The Services propose to list the populations of anadromous Atlantic 
salmon in the Sheepscot, Ducktrap, Narraguagus, Pleasant, Machias, East 
Machias and Dennys rivers as threatened under the Act. Both the 
naturally reproducing populations of Atlantic salmon in these seven 
rivers and the river specific hatchery populations for these seven 
rivers are included in the DPS.

Prohibitions and Proposed Protective Measures

    With respect to the seven populations of Atlantic salmon proposed 
for listing, the Services propose to adopt joint regulations which 
apply all prohibitions of 50 CFR 17.31 to the DPS, allowing exceptions 
for incidental take under sections 4(d) and 10 of the Act. This 
regulation applies most section 9 prohibitions and exceptions to 
threatened species, including protective measures to prohibit taking, 
interstate commerce, and other Act prohibitions applicable to 
endangered species, with the exceptions provided under section 10 of 
the Act. The Services also propose to adopt specific regulations under 
section 4(d) that will apply to the DPS of Atlantic salmon identified 
as threatened (see Special Rule).
    These prohibitions apply to all individuals, organizations, and 
agencies subject to U.S. jurisdiction. The Act and implementing 
regulations set forth a series of general prohibitions and exceptions 
that apply to all endangered wildlife. The prohibitions (codified at 50 
CFR 17.21 for endangered fish or wildlife), in part, make it illegal 
for any person subject to the jurisdiction of the United States to take 
(includes harass, harm, pursue, hunt, shoot, wound, kill, trap, 
capture, or collect; or to attempt any of these), import or export, 
ship in interstate commerce in the course of commercial activity, or 
sell or offer for sale in interstate or foreign commerce any listed 
species. It also is illegal to possess, sell, deliver, carry, 
transport, or ship any such wildlife that has been taken illegally. 
Section 17.31 of 50 CFR prohibits certain activities that directly or 
indirectly affect threatened species. The proposed rule provides that 
any violation of applicable State law or regulation concerning the 
taking of Atlantic Salmon will also be a violation of Federal law. By 
including this provision, the Services intend to notify the public that 
any State law or regulation concerning the ``take'' of Atlantic Salmon 
which is more specific or more protective of a listed species than 
existing federal law, may be enforced as if it were Federal law 
pursuant to the Act.
    As announced in a recent joint policy (59 FR 34272, July 1, 1994), 
the Services will identify at the time a final rule is published, to 
the maximum extent practicable, those activities that would or would 
not constitute a violation of section 9 of the Act. The intent of this 
policy is to increase public awareness of the effect of the listing on 
proposed and ongoing activities within the range of a species. 
Activities that the Services believe could result in ``take'' of 
anadromous Atlantic salmon within the DPS include, but are not limited 
to, the following:
    (1) Targeted recreational and commercial fishing, bycatch 
associated with commercial and recreational fisheries, and poaching;
    (2) Introduction of non-indigenous Atlantic salmon stock or other 
species not indigenous to the DPS rivers;
    (3) Discharges (point and non-point sources) or dumping of toxic 
chemicals, silt, fertilizers, pesticides, herbicides, heavy metals, 
oil, organic wastes or other pollutants into waters supporting the 
species;
    (4) Blockage of migration routes;
    (5) Destruction/alteration of the species' habitat (i.e. instream 
dredging, rock removal, channelization, discharge of fill material, 
operation of heavy equipment within the stream channel, manipulation of 
river flow, etc.);
    (6) Hatchery practices that are likely to cause genetic, disease, 
or ecological impacts to the DPS.
    The Services believe that, based on the best available information, 
the following actions will not result in a violation of section 9, 
provided these activities are carried out in accordance with existing 
regulations and permit requirements:
    (1) Fishing for other species if conducted in conformance with the 
Atlantic salmon conservation plan required by the special rule and 
approved by the Services;
    (2) Harvest of landlocked Atlantic salmon at locations delineated 
by the Maine Department of Inland Fisheries and Wildlife; and
    (3) Unavoidable losses in river specific hatchery stocks due to 
standard culture techniques.
    (4) Federally approved projects that involve activities, such as 
instream dredging, rock removal, channelization, discharge of fill 
material, operation of heavy equipment within the stream channel, or 
manipulation of river flow, when such activity is conducted in 
accordance with any reasonable and prudent measures given by the 
Services in accordance with section 7 of the Act.
    Permits may be issued, under section 10 of the Act, to carry out 
otherwise prohibited activities involving endangered or threatened 
wildlife under certain circumstances. Regulations governing permits are 
codified at 50 CFR 17.22, 17.23, 17.31, 222.22, and 222.23 for 
threatened and endangered fish and wildlife. Such permits are available 
for scientific purposes, to enhance the propagation or survival of the 
species, for educational purposes, and/or for incidental take in the 
course of otherwise lawful activities. Questions regarding whether 
specific activities will constitute a violation of section 9 should be 
directed to the Chief, Division of Endangered Species in the FWS 
Hadley, Massachusetts, office, or the Chief, Protected Resources 
Division, in the NMFS Gloucester, Massachusetts, office (see 
ADDRESSES).

Special Rule

    The implementing regulations for threatened wildlife under the Act 
incorporate the section 9 prohibitions for endangered wildlife (50 CFR 
17.31 and 50 CFR 222.21), except when a special rule promulgated 
pursuant to section 4(d) applies (50 CFR 17.31 (c)). Section 4(d) of 
the Act provides that whenever a species is listed as a threatened 
species, the Services shall issue regulations deemed necessary and 
advisable to provide for the conservation of the species. Conservation 
means the use of all methods and procedures necessary to bring the 
species to the point at which the protections of the Act are no longer 
necessary. Section 4(d) also states that the Services may, by 
regulation, extend 

[[Page 50535]]
to threatened species all prohibitions provided for endangered species 
under section 9(a) of the Act.
    Pursuant to section 4(d) of the Act and 50 CFR 17.31(c), the 
Services propose to define the conditions under which the incidental 
take of Atlantic salmon resulting from activities regulated by State 
and local governments would not violate section 9 of the Act. Under the 
special rule, incidental take of Atlantic salmon when conducting 
otherwise lawful activities addressed in an Atlantic salmon 
conservation plan prepared by the State of Maine and approved by the 
Services, would not be considered a violation of section 9 of the Act, 
provided the Services determine that such a plan is consistent with the 
criteria for an ``incidental take'' permit pursuant to section 
10(a)(2)(B) of the Act, 50 CFR 17.32(b)(2), and 50 CFR 222.22(c)(2).
    The intent of the special rule is to provide the State of Maine an 
opportunity to maintain the lead role in the management of activities 
that could impact Atlantic salmon in the DPS. The Services are 
encouraging the State to identify such activities and include them in a 
conservation plan to be submitted to the Services any time after the 
publication of this notice. Once the plan is received, the Services 
will publish a notice of availability and accept public comments on 
that plan. The Services will consider public comments and the criteria 
outlined in this section to determine whether the plan will reduce 
threats and promote the conservation of Atlantic salmon in the DPS. The 
Services will work closely with Maine officials to revise or strengthen 
sections of the plan as may be necessary prior to plan approval.
    The Services recommend that the Atlantic salmon conservation plan 
contain, but not be limited to, the following sections--(1) a 
discussion of the lawful activities having the potential to 
incidentally take Atlantic salmon, (2) activities such as recreational 
fishing targeting species other than Atlantic salmon, habitat 
modification, and aquaculture, and (3) the potential impacts to the DPS 
and provisions to minimize those impacts.
    Using recreational fishing as an example, the State could identify 
various ongoing fishing activities in the seven rivers (bass, trout, 
etc.) and the likelihood of each to incidentally catch an Atlantic 
salmon adult or juvenile. The plan would address the time of year of 
each fishery, location, and gear used. The plan should identify 
acceptable levels of incidental take, measures that will be implemented 
to monitor incidental take, and measures to further restrict the 
fishing activity should such take exceed that allowed. State law 
enforcement activities to protect Atlantic salmon in the seven rivers 
should be identified. In addition, the plan should include outreach 
activities that will be conducted to enlist angler support and educate 
anglers on the proper method for releasing incidentally caught Atlantic 
salmon.
    If aquaculture is included in the plan, then the plan should 
include an evaluation of the potential for incidental take to occur. A 
take could result, for example, from the interbreeding of escaped net-
pen reared salmon and DPS salmon, the transfer of disease, or the 
disruption of wild redds. An assessment of the likelihood of 
interaction should include information on past escapement of Atlantic 
salmon either from cages or hatcheries, and any documentation as to the 
presence of the aquaculture fish in the seven rivers identified. 
Measures that will be required by the State to minimize interactions 
between DPS and net-pen reared Atlantic salmon should be identified and 
could include such provisions as cage monitoring and reporting of 
escapees and the subsequent monitoring of rivers, improved cage design, 
placement of weirs in the seven rivers, disease certification, siting 
constraints, broodstock selection, sterilization, marking of net-pen 
fish, and law enforcement activities.
    Although the Status Review does not identify habitat modification 
in the seven rivers in the DPS as a major threat to Atlantic salmon, 
the State prepared conservation plan should discuss state authorized 
activities that could potentially modify habitat and incidentally take 
Atlantic salmon. This discussion should address impacts of water 
withdrawals and land use practices on spawning habitat, along with 
State efforts, both existing and planned, to reduce such impacts. This 
section might include a brief summary of existing regulations, permit 
review procedures, water quality monitoring activities, public outreach 
activities, and voluntary landowner efforts such as Project SHARE, 
which focus on habitat protection and improvement. Finally, the plan 
should include provisions for identifying and correcting any situations 
which are likely to be causing incidental take and monitoring the 
effects of such corrective actions. The conservation of the DPS must be 
the basis for all provisions of the plan.
    The standards the Services will use to evaluate the State plan are 
consistent with those set forth in 50 CFR 17.32(b)(2) and 50 CFR 
222.22(c)(2), which define the issuance criteria for obtaining a permit 
to incidentally take listed wildlife species under section 10(a)(1)(B) 
of the Act. The six criteria are:
    (1) Any taking will be incidental to otherwise lawful activities 
and not the purpose of such activities. Any taking of Atlantic salmon 
in the seven rivers as described in the plan would have to occur 
inadvertently while conducting an activity whose purpose was not to 
harass, harm, pursue, hunt, shoot, wound, kill, trap, capture or 
collect Atlantic salmon from the seven river populations. The taking 
must not be deliberate and purposeful. The plan must include an 
analysis of alternatives that would not result in take and an 
explanation of why these are not being used. The plan should include 
the State regulations that govern these fisheries as well as 
information on how those regulations are promulgated, enforced, and 
modified.
    (2) The plan should, to the maximum extent practicable, minimize 
and mitigate the impacts of any proposed incidental take. Compliance 
with this standard involves a planning strategy that emphasizes 
avoidance of impacts to Atlantic salmon, provides measures to minimize 
potential impacts by modifying practices (e.g. in the case of 
aquaculture it could include improved cage design, increased monitoring 
and reporting of escapees, etc.), and details compensation measures 
needed to offset unavoidable impacts (e.g., weirs or other means to 
recapture escapees).
    (3) The plan should be adequately funded and contain provisions to 
deal with unforeseen circumstances. A summary of the funding that will 
be available to implement provisions of the plan, including enforcement 
and monitoring, should be provided. The plan should outline how it will 
be determined that there is an unforeseen problem and should include 
the specific steps that will be taken to correct that problem.
    (4) Any taking allowed under the plan should not appreciably reduce 
the likelihood of survival and recovery of Atlantic salmon in the wild. 
This criterion is equivalent to the regulatory definition of 
``jeopardy'' under section 7(a)(2) of the Act and means to engage in 
any activity that reasonably would be expected, directly or indirectly, 
to reduce appreciably the likelihood of both the survival and recovery 
of the DPS. In the case of incidental catch of Atlantic salmon, the 
plan must include an assessment of the potential for Atlantic salmon to 
be incidentally caught by anglers targeting other species, the 
likelihood of mortality to the Atlantic salmon that is caught and 

[[Page 50536]]
released (including the potential for it to be caught more than once), 
and the resulting impact to the river population of Atlantic salmon. In 
the case of aquaculture, the plan must include an assessment of the 
potential for Atlantic salmon to be taken as a result of ongoing 
aquaculture operations and an assessment of the possible impacts to the 
affected river population of Atlantic salmon.
    (5) The plan should ensure that other measures that the Services 
may require as being necessary or appropriate will be provided. These 
measures should become apparent during plan development through 
coordination among the Services, the State and any other plan 
participants and will likely include terms and conditions for 
monitoring implementation of the plan to ensure that its requirements 
and the requirements of the Act are met.
    (6) The Services are assured that the plan will be implemented. The 
plan should specify how the State agencies will exercise their existing 
authorities to adhere to the commitments made in the plan. Any 
violations could be a basis for revocation of the Services' concurrence 
with the plan.
    Once approved by the Services, the conditions contained in the 
approved plan will be the conditions, pursuant to section 4(d), under 
which the incidental take of Atlantic salmon in the seven rivers would 
not be a violation of section 9.
    The Services and the State will monitor the implementation of the 
plan and will conduct annual reviews to assess progress, identify 
problems and recommend corrective action. If the Services determine 
that the plan is not being effectively implemented, they will discuss 
their concerns with appropriate State officials and jointly determine 
the nature and timing of corrective action. If corrective action is not 
taken within 90 days of such discussion, plan approval may be revoked 
either partially or completely. The Services will publish the findings 
for such revocation in the Federal Register and provide for a 30-day 
public comment period prior to revocation. Such revocation would result 
in reinstatement of the take prohibitions made applicable through 50 
CFR 425.21(a)(1).
    At this time, different procedures exist between the Services for 
authorizing the incidental take of listed species. The FWS provides 
such authorization through its Cooperative Agreement with the State of 
Maine under section 6 of the Act. The NMFS provides such authorization 
directly under section 10 of the Act. The language of the proposed rule 
at 50 CFR 425.21(b)(1) reflects the existing differences. It is the 
intent of the Services to ensure that these procedures are streamlined 
and to provide the public with a ``one-stop'' authorization process 
should this proposal be made final and an approved State Atlantic 
salmon conservation plan be implemented.

Available Conservation Measures

    Conservation measures provided for species listed as endangered or 
threatened under the Act include recovery actions, Federal agency 
consultation requirements, and prohibitions on taking. Recognition 
through listing promotes conservation actions by Federal and State 
agencies and private groups and individuals.
    Section 7(a)(4) of the Act requires that Federal agencies confer 
with the Services on any actions likely to jeopardize the continued 
existence of a species proposed for listing and on actions resulting in 
destruction or adverse modification of proposed critical habitat. For 
listed species, section 7(a)(2) requires Federal agencies to ensure 
that activities they authorize, fund, or conduct are not likely to 
jeopardize the continued existence of a listed species or to destroy or 
adversely modify its critical habitat. If a Federal action may 
adversely affect a listed species or its critical habitat, the 
responsible Federal agency must enter into formal consultation with the 
Services. Consultations will be conducted on a river-specific basis 
pursuant to identification of river specific recovery units within the 
DPS.
    Examples of Federal actions that may be affected by this proposal 
include U.S. Army Corps of Engineers (COE) section 404 permitting 
activities under the Clean Water Act, and COE section 10 permitting 
activities under the Rivers and Harbors Act.
    In addition to the actions identified under Basis for 
Determination, the following general conservation measures could be 
implemented to help conserve the species. This list does not constitute 
the Services' interpretation of the entire scope of a recovery plan 
under section 4(f) of the Act.
    (1) Further efforts could be made to ensure that water extractions 
and diversions for agriculture do not adversely affect habitat of DPS 
Atlantic salmon. In addition, all water diversion intake structures 
available to downstream migrating Atlantic salmon could be screened.
    (2) Atlantic salmon aquaculture facilities located less than 20 km 
(12 miles) from the mouths of the Narraguagus, Pleasant, Machias, East 
Machias and Dennys rivers could be encouraged to implement stringent 
disease protocols, sterilize fish, change broodstock origin, mark net 
pen reared fish, install and maintain weirs at the mouths of rivers to 
exclude escaped aquaculture fish, and/or develop and implement plans to 
safeguard against the accidental release (escape) of aquaculture fish.
    (3) Predator species could be controlled.
    (4) For candidate species, or species of concern for FWS (see 60 FR 
14410, March 17, 1995), restoration efforts will continue on the 
Penobscot and St. Croix rivers. Studies will be conducted to determine 
the presence, origin, and genetic composition of wild Atlantic salmon 
in the Kennebec, Penobscot, and St. Croix rivers, and Tunk Stream. An 
intensive survey of the Tunk Stream watershed is needed to determine if 
Atlantic salmon are still present. Better documentation of wild 
abundance and natural reproduction of Atlantic salmon is required for 
all four rivers.
    Should the proposed listing be made final, protective regulations 
under the Act would be put into effect and a recovery program would be 
implemented. The Services recognize that to be successful, protective 
regulations and recovery programs for Atlantic salmon will need to be 
developed in the context of conserving aquatic ecosystem health. The 
Services, the State of Maine, and the private sector must cooperate to 
conserve the listed populations and the ecosystems upon which they 
depend. The Services encourage non-federal landowners to assess the 
impacts of their actions on Atlantic salmon. In particular, the 
Services acknowledge and fully support the ongoing efforts to involve 
stakeholders (industry representatives, landowner representatives, 
local and state governments and Federal biologists) through Project 
SHARE and the ad hoc task force to address aquaculture and wild stock 
interactions.

Critical Habitat

    Critical habitat is defined in section 3 of the Act as: (1) The 
specific areas within the geographical area occupied by a species, at 
the time it is listed in accordance with the Act, on which are found 
those physical or biological features (I) essential to the conservation 
of the species and (II) that may require special management 
considerations or protection; and (2) specific areas outside the 
geographical area occupied by a species at that time it is listed upon 
a determination that such areas are essential for the conservation of 
the species.

[[Page 50537]]

    Section 4(a)(3)(a) of the Act requires that, to the extent prudent 
and determinable, critical habitat be designated concurrently with the 
listing of a species. Designations of critical habitat must be based on 
the best scientific data available and must take into consideration the 
economic and other relevant impacts of specifying any particular area 
as critical habitat. While the Team has completed its analysis of the 
biological status of anadromous Atlantic salmon in the United States, 
it has not been able to address either the prudency or determinability 
of critical habitat designation. Therefore, during the comment period 
for this listing proposal the Services will seek additional agency and 
public input on critical habitat, along with information on the 
proposed listing of Atlantic salmon in the DPS rivers. The Services 
will use this and other information in formulating a decision on 
critical habitat designation for the Atlantic salmon.

Public Comments Solicited

    To ensure that the final action resulting from this proposal will 
be as accurate and effective as possible, the Services are soliciting 
comments and information from the public, other concerned governmental 
agencies, the scientific community, industry, and any other interested 
parties. Specifically, the Services are soliciting information 
regarding: (1) Biological, commercial trade, or other relevant data 
concerning any threat (or lack thereof) to this species; (2) the 
reasons why any habitat should or should not be determined to be 
critical habitat pursuant to section 4 of the Act; (3) additional 
information concerning the range, distribution, and population size of 
this species; (4) current or planned activities in the subject area and 
their possible impacts on this species; (5) additional efforts being 
made to protect native, naturally-reproducing populations of Atlantic 
salmon; (6) relationship of existing hatchery populations to natural 
populations within the DPS and in the four river populations designated 
as candidate species (60 FR 14410, March 17, 1995), or species of 
concern, for FWS; (7) the development of a special section 4(d) 
regulation to allow incidental take of Atlantic salmon in accordance 
with an approved State conservation plan; and (8) additional 
information on the status and threats to the anadromous Atlantic salmon 
in the Penobscot, Kennebec, and St. Croix rivers and Tunk Stream.
    The Services are also requesting information on areas that may 
qualify as critical habitat for the identified DPS of Atlantic salmon. 
Areas that include the physical and biological features essential to 
the recovery of the species should be identified. Areas outside the 
present range should also be identified if such areas are essential for 
the conservation of the species. Essential features should include, but 
are not limited to: (1) Space for individual and population growth; (2) 
food, water, air, light, minerals, or other nutritional or 
physiological requirements; (3) cover or shelter; (4) sites for 
reproduction and rearing of offspring; and (5) habitats that are 
protected from disturbance or are representative of the historic 
geographical and ecological distributions of the species.
    For areas potentially qualifying as critical habitat, the Services 
are requesting information describing: (1) The activities that affect 
the area or could be affected by the designation, and (2) the economic 
costs and benefits of restrictions on Federal activities that are 
likely to result from the designation.
    The economic cost to be considered in the critical habitat 
designation under the Act is the probable economic impact ``of the 
(critical habitat) designation upon proposed or ongoing activities'' 
(50 CFR 424.19). The Services must consider the incremental costs 
specifically resulting from a critical habitat designation that are 
above the economic effects attributable to listing the species. 
Economic effects attributable to listing include actions resulting from 
section 7 consultations under the Act to avoid jeopardy to the species 
and from the taking prohibitions under section 9 of the Act. Comments 
concerning economic impacts should distinguish between the costs of 
listing from the incremental costs that can be directly attributable to 
the designation of specific areas as critical habitat.
    Final promulgation of the regulation(s) on this species will take 
into consideration the comments and any additional information received 
by the Services, and such communications may lead to a final regulation 
that differs from this proposal.

National Environmental Policy Act

    The FWS has determined that an Environmental Assessment, as defined 
under the authority of the National Environmental Policy Act of 1969 
(NEPA), need not be prepared in connection with regulations adopted 
pursuant to section 4(a) of the Act. The notice for this determination 
was published in the Federal Register on October 25, 1983 (48 FR 
49244). Sections 4(b)(1) of the Act restricts the information that may 
be considered when assessing species for listing. Based on this 
limitation and the opinion in Pacific Legal Foundation v. Andrus, 657 
F.2d 829 (6 Cir. 1981), the NMFS has determined that listing actions 
under the Act are excluded from the normal requirements of the NEPA.

Classification

    The Conference Report on the 1982 amendments to the Act notes that 
economic considerations have no relevance to determinations regarding 
the status of species, and that the Regulatory Flexibility Act and the 
Paperwork Reduction Act are not applicable to the listing process. 
Similarly, listing actions are not subject to the requirements of 
Executive Order 12612 and are exempt from review under Executive Order 
12866.
    The proposed special rule in 50 CFR part 425 was reviewed under 
Executive Order 12866. The Services certify that the proposed revisions 
to 50 CFR 425 will not have a significant economic effect on a 
substantial number of small entities under the Regulatory Flexibility 
Act (5 U.S.C. 601 et seq.). Significant adverse impacts are not 
expected as a result of the proposed rule because the rule is intended 
to reduce the likelihood of persons conducting otherwise lawful 
activities being in violation of section 9 of the Act. No direct costs, 
enforcement costs, information collection, or recordkeeping 
requirements are required by this proposed rule beyond those already 
required by existing regulations. The proposed rule does not contain 
any recordkeeping requirements as defined by the Paperwork Reduction 
Act of 1980 (44 U.S.C. 3501 et seq.) and does not require a Federalism 
assessment under Executive Order 12612 because it would have no 
significant Federalism effects described in that order. Finally, the 
Services have determined that the proposed regulation does not require 
the preparation of a Takings Implication Assessment under the 
requirements of Executive Order 12630, ``Government Actions and 
Interference with Constitutionally Protected Property Rights.''

Authors

    Authors of this document are Mary Colligan of the NMFS and Paul 
Nickerson of the FWS.

List of Subjects in

50 CFR Part 17

    Administrative practice and procedure, Endangered and threatened 
species, Exports, Imports, Reporting and recordkeeping requirements, 
and Transportation.

[[Page 50538]]


50 CFR Part 227

    Administrative practice and procedure, Endangered and threatened 
species, Exports, Imports, Reporting and recordkeeping requirements, 
and Transportation.

50 CFR Part 425

    Administrative practice and procedure, and Endangered and 
threatened species.

Proposed Regulation Promulgation

    Accordingly, the Services hereby propose to amend part 17, 
subchapter B of chapter I and part 227, subchapter C; to add part 425, 
subchapter B, title 50 of the Code of Federal Regulations, as set forth 
below. The FWS amendments to part 17 are listed first, followed by the 
NMFS amendments to part 227. The new part 425 is listed last.

PART 17--[AMENDED]

    1. The authority citation for part 17 continues to read as follows:

    Authority: 16 U.S.C. 1361-1407; 16 U.S.C. 1531-1544; 16 U.S.C. 
4201-4245; Pub. L. 99-625, 100 Stat. 3500, unless otherwise noted.

    2. Section 17.11(h) is amended by adding the following, in 
alphabetical order under FISHES, to the List of Endangered and 
Threatened Wildlife to read as follows:
* * * * *
    (h) * * *

--------------------------------------------------------------------------------------------------------------------------------------------------------
                  Species                                             Vertebrate                                                                        
-------------------------------------------                        population where                 When     Critical                                   
                                               Historic range       endangered or       Status     listed    habitat             Special rules          
     Common name         Scientific name                              threatened                                                                        
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                                                                                                        
                   *                  *                  *                  *                  *                  *                  *                  
FISHES                                                                                                                                                  
                                                                                                                                                        
                                                                                                                                                        
                   *                  *                  *                  *                  *                  *                  *                  
Salmon, Atlantic....  Salmo salar.........  U.S.A., Canada,      U.S.A. (ME) Natural          T         NA         NA  17.44(v), 227.13, 425.21         
                                             Greenland, western   and river-specific                                                                    
                                             Europe.              hatchery                                                                              
                                                                  populations in the                                                                    
                                                                  Dennys, East                                                                          
                                                                  Machias, Machias,                                                                     
                                                                  Pleasant,                                                                             
                                                                  Narraguagus,                                                                          
                                                                  Sheepscot,                                                                            
                                                                  Ducktrap Rivers.                                                                      
                                                                                                                                                        
                                                                                                                                                        
                   *                  *                  *                  *                  *                  *                  *                  
--------------------------------------------------------------------------------------------------------------------------------------------------------

    3. In Sec. 17.44 a new paragraph (v) is added to read as follows:


Sec. 17.44  Special rules--fishes.

* * * * *
    (v) Atlantic salmon (Salmo salar). All prohibitions and exceptions 
thereto regarding the distinct population segment of Atlantic salmon 
listed at 50 CFR 17.11 and 50 CFR 227.4(m) are specified in regulations 
jointly promulgated by the Fish and Wildlife Service and the National 
Marine Fisheries Service at 50 CFR 425.21.

PART 227--THREATENED FISH AND WILDLIFE

    1. The authority citation for part 227 continues to read as 
follows:

    Authority: 16 U.S.C. 1531 et seq.

    2. In Sec. 227.4 a new paragraph (m) is added to read as follows:


Sec. 227.4  Enumeration of threatened species.

* * * * *
    (m) Natural and river-specific hatchery populations of Atlantic 
salmon (Salmo salar) in the Dennys, Ducktrap, E. Machias, Machias, 
Narraguagus, Pleasant and Sheepscot rivers, Maine.
    3. In part 227 a new Sec. 227.13 is added to read as follows:


Sec. 227.13  Atlantic Salmon.

    All prohibitions and exceptions thereto regarding the distinct 
population segment of Atlantic salmon listed at 50 CFR 17.11 and 50 CFR 
227.4(m) are specified in regulations jointly promulgated by the Fish 
and Wildlife Service and National Marine Fisheries Service at 50 CFR 
425.21.
    1. Part 425 is added to read as follows:

PART 425--JOINT REGULATIONS FOR ENDANGERED AND THREATENED SPECIES

Subpart A--General Provisions

Sec.
425.1  Purpose.
425.2  Scope.
425.3  Definitions.
425.4  Enumeration of jointly listed endangered and threatened 
species.

Subpart B--[Reserved]

Subpart C--Joint Regulations Governing Jointly Listed Threatened 
Species

425.21  Atlantic salmon.

    Authority: The Endangered Species Act of 1973, 16 U.S.C. 1531 et 
seq., as amended.

Subpart A--General Provisions


Sec. 425.1  Purpose.

    The regulations contained in this part identify the species under 
the joint jurisdiction of the Secretary of Commerce and the Secretary 
of the Interior which have been determined to be endangered or 
threatened species under the Endangered Species Act of 1973 and 
establish rules and procedures to govern activities involving the 
species.


Sec. 425.2  Scope.

    (a) The regulations contained in this part apply only to the 
endangered and threatened species enumerated in Sec. 425.4.
    (b) The provisions of this part are in addition to, and not in lieu 
of, other applicable regulations of Chapters I and II (title 50).


Sec. 425.3  Definitions.

    (a) Act means the Endangered Species Act of 1973, as amended, 16 
U.S.C. 1531 et seq.
    (b) Atlantic salmon means the distinct population segment of 
Atlantic salmon listed in Sec. 425.4(b).
    (c) The Services means the Director of the Fish and Wildlife 
Service and the 

[[Page 50539]]
Assistant Administrator for Fisheries, National Marine Fisheries 
Service.


Sec. 425.4  Enumeration of jointly listed endangered and threatened 
species.

    (a) [Reserved]
    (b) Threatened species--A distinct population segment of Atlantic 
salmon composed of natural and river-specific hatchery populations from 
the Dennys, Ducktrap, East Machias, Machias, Narraguagus, Pleasant, and 
Sheepscot rivers, Maine.

Subpart B--[Reserved]

Subpart C--Joint Regulations Governing Jointly Listed Threatened 
Species


Sec. 425.21  Atlantic salmon.

    The following provisions shall govern the activities involving 
Atlantic salmon:
    (a) Prohibitions. (1) Except as provided in paragraph (b) of this 
section, all provisions of 50 CFR 17.31(a-b) shall apply to the 
distinct population segment of Atlantic salmon enumerated at 50 CFR 
425.4(b). For the purposes of this section, any reference to the 
``Director'' or the Fish and Wildlife Service shall mean ``Services'' 
as defined at 50 CFR 425.3(c). Reports required under Sec. 17.21(c)(4) 
should also be sent to National Marine Fisheries Service, 1 Blackburn 
Drive, Gloucester, MA 01930.
    (2) Any violation of applicable State fish and wildlife 
conservation laws or regulations with respect to the taking of the 
species will also be a violation of the Act.
    (3) No person shall possess, sell, deliver, carry, transport, ship, 
import or export, by any means whatsoever, any such species taken in 
violation of applicable State fish and wildlife laws or regulations.
    (4) No person shall attempt to commit, solicit another to commit, 
or cause to be committed, any offense defined in paragraphs (a) (1) 
through (3) of this section.
    (b) Exceptions. (1) The Services may issue incidental take permits 
or permits authorizing activities which would otherwise be unlawful 
under paragraphs (a) (1) through (4) of this section for education 
purposes, scientific purposes, the enhancement or propagation for 
survival of Atlantic salmon, zoological exhibition, and other 
conservation purposes consistent with the Act in accordance with 50 CFR 
17.32 and 50 CFR part 222, subpart C, Endangered Fish and Wildlife 
Permits, and pursuant to a section 6 Cooperative Agreement with the 
State of Maine, if applicable.
    (2) Incidental take of Atlantic salmon will not be considered 
unlawful under paragraphs (a) (1) through (4) if it results from 
activities conducted in accordance with:
    (i) A State plan to conserve Atlantic salmon that is approved by 
the Services pursuant to paragraph (b)(3) of this section, and
    (ii) Implementing State regulations specified in paragraph 
(b)(3)(iii) of this section.
    (3) State plan.
    (i) Upon receipt of a State plan, the Services will publish a 
notice of availability and allow for a 60-day comment period.
    (ii) In determining whether to approve a State plan to conserve the 
Atlantic salmon, the Services shall consider public comments received 
and evaluate whether the plan meets the criteria in Sec. 17.32(b)(2) 
and 50 CFR Part 222, subpart C, Endangered Fish and Wildlife Permits 
for determining whether to issue an incidental take permit. At a 
minimum, the plan should contain the following information:
    (A) Description of the legal activities having a potential to 
incidentally take Atlantic salmon;
    (B) Description of the potential impact of these activities to 
Atlantic salmon;
    (C) Provisions for minimizing the potential impact on and for 
promoting the conservation of Atlantic salmon;
    (D) Necessary oversight requirements; and
    (E) Conditions or criteria that would trigger the immediate 
cessation of such activities because of the potential negative impact 
on Atlantic salmon.
    (iii) The Services will not approve the plan until activities which 
are authorized and activities which are prohibited are codified into 
the State's fish and wildlife regulations.
    (iv) The Services will monitor the implementation of the plan and 
will conduct annual reviews to assess progress, identify problems, and 
recommend corrective action. If the Services determine that the plan is 
not being effectively implemented, the concerns will be discussed with 
appropriate State officials and the nature and timing of corrective 
action will be jointly determined. If corrective action is not being 
implemented within 90 days of such discussions, plan approval and 
authorization for any exceptions to prohibitions on the taking of 
Atlantic salmon may be revoked either partially or completely. The 
Services will publish the findings for such revocation in the Federal 
Register and provide for a 30-day public comment period prior to 
revocation.

    Dated: September 26, 1995.
Nancy Foster,
Deputy Assistant Administrator for Fisheries, National Marine Fisheries 
Service.
    Dated: September 21, 1995.
George T. Frampton, Jr.,
Assistant Secretary for Fish and Wildlife and Parks.
[FR Doc. 95-24319 Filed 9-28-95; 8:45 am]
BILLING CODE 4310-55-P