[Federal Register Volume 60, Number 193 (Thursday, October 5, 1995)]
[Rules and Regulations]
[Pages 52121-52128]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-24608]



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DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

50 CFR Part 227

[I.D. 060995B]


Endangered and Threatened Wildlife; Revised Sea Turtle/Shrimp 
Fishery Emergency Response Plan

AGENCY: National Marine Fisheries Service (NMFS), National Oceanic and 
Atmospheric Administration (NOAA), Commerce.

ACTION: General statement of policy; request for comments.

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SUMMARY: NMFS has revised, and is publishing herein, the Sea Turtle/
Shrimp Fishery Emergency Response Plan (ERP) that describes NMFS' 
policy to ensure compliance with the sea turtle conservation 
regulations promulgated under the Endangered Species Act (ESA) and 
provides guidance for the use of future rulemaking in response to 
elevated sea turtle strandings associated with shrimping in the 
southeastern United States. The ERP has been revised in response to 
comments on the ERP and the receipt of new technical information. This 
notice contains a revised ERP in its entirety and invites public review 
and comment.

DATES: The revised ERP describes NMFS' policy effective October 4, 
1995. 

[[Page 52122]]
Comments will be accepted through December 4, 1995.

ADDRESSES: Comments on this notice should be addressed to the Chief, 
Endangered Species Division, Office of Protected Resources, NMFS, 1315 
East-West Highway, Silver Spring, MD 20910.

FOR FURTHER INFORMATION CONTACT: Charles A. Oravetz, 813-570-5312, or 
Phil Williams, 301-713-1401.

SUPPLEMENTARY INFORMATION:

Background

    NMFS consults on shrimp fishing operations in the southeastern 
United States that may affect sea turtles listed as threatened or 
endangered, pursuant to section 7 of the ESA, 16 U.S.C. 1531 et seq. 
These shrimp fishing operations are managed, in part, under the Gulf of 
Mexico Shrimp Fishery Management Plan and the South Atlantic Shrimp 
Fishery Management Plan, both implemented pursuant to the Magnuson 
Fisheries Management and Conservation Act, 16 U.S.C. 1801 et seq., and 
the Sea Turtle Conservation Regulations at 50 CFR part 227, subpart D, 
implemented under the ESA.
    Unprecedented sea turtle stranding levels in Texas, Louisiana, and 
Georgia associated with shrimp fishing during 1994 resulted in a 
reinitiation of consultation pursuant to 50 CFR 402.16 on shrimp 
fishing in the southeastern United States. The resulting Biological 
Opinion (Opinion), issued on November 14, 1994, concluded that 
continued long-term operation of the fishery under the existing 
management regime was likely to jeopardize the continued existence of 
the Kemp's ridley population and prevent the recovery of loggerheads, 
but identified a reasonable and prudent alternative to allow the 
fishery to continue while avoiding jeopardy. One of the components of 
the alternative was to develop an ERP by March 14, 1995, to identify 
actions NMFS would take to ensure compliance with sea turtle 
conservation regulations. The ERP also provides internal guidance for 
the use of future rulemaking in response to elevated sea turtle 
strandings associated with shrimping in the southeastern United States.
    On March 17, 1995, NMFS distributed the ERP widely among all 
concerned parties, including shrimp industry and environmental 
organizations for their information and comment. In addition, formal 
notice of availability for the ERP was published on April 21, 1995 (60 
FR 19885).

ERP Implementation and Recent Events

    The guidelines in the ERP have been used by NMFS throughout the 
1995 shrimping season for its stranding reporting and public 
notification procedures, for its enforcement efforts, and for the 
scope, timing and structure of its temporary restrictions on shrimp 
fishing. While the ERP has served to guide NMFS and apprise the public 
of when and how restrictions may be imposed by NMFS, justification for 
these restrictions and changes thereto have been provided concurrently 
with the restrictions themselves. Any deviations from the ERP 
guidelines, and the relationship to the ERP, have also been explained 
with the restrictions.
    Temporary requirements were placed on shrimp trawling in nearshore 
waters along two sections of the Texas and Louisiana coast on April 30, 
1995 (60 FR 21741, May 3, 1995), on the Georgia coast on June 21, 1995 
(60 FR 32121, June 20, 1995), and on the Georgia and the southern 
portion of the South Carolina coast on August 11, 1995 (60 FR 42809, 
August 17, 1995) to conserve sea turtles, especially the endangered 
Kemp's ridley. These requirements were necessitated by the continued 
high rates of sea turtle strandings occurring in these areas along with 
documented shrimping effort. A complete description of the sea turtle 
stranding events, temporary requirements, and the areas in which they 
have applied is provided in the temporary requirements (60 FR 21741, 
May 3, 1995, 60 FR 32121, June 20, 1995, 60 FR 42809, August 17, 1995), 
and is not repeated here.
    In all cases, strandings decreased in those areas where temporary 
requirements were imposed, indicating that the measures identified in 
the ERP have been successful at reducing high stranding levels. This is 
further evidenced by the contrast in the number of Kemp's ridley 
strandings that occurred on Texas offshore beaches in 1994 and 1995. In 
the entire state, 48 Kemp's ridleys stranded in April 1995 prior to the 
implementation of emergency rulemaking, corresponding closely with the 
50 ridley strandings reported in Texas during April in 1994. The 
emergency gear restrictions effective April 30, 1995 were implemented 
in areas where 42 of these strandings occurred. Although ridley 
strandings increased drastically to 71 sea turtles during May of 1994, 
during May of 1995 there were only 17 ridley strandings, despite the 
slightly later start to the Texas closure (May 15, 1995 versus May 13, 
1994). This contrast between years illustrates the effectiveness of the 
emergency restriction in arresting ridley mortalities. The decline in 
mortalities, whether due to the gear modifications and improved turtle 
exclusion, or to reduced shrimping effort in areas of ridley abundance 
due to shrimpers leaving the affected areas, was consistent with the 
intent of the ERP. Implementation of restrictions at other times and in 
other zones have similarly reduced sea turtle strandings, demonstrating 
the effectiveness of certain gear restrictions. Cumulative strandings 
of Kemp's ridleys are considerably lower than 1994. While overall 
cumulative strandings of all species of sea turtles have been 
relatively high in 1995, not all of these strandings appear to be the 
result of shrimp fishing, and further appear to occur over the course 
of the season rather than episodically. These issues are being 
considered in additional rulemaking as announced in the Advance Notice 
of Proposed Rulemaking (ANPR) published on September 13 (60 FR 47544). 
Through the ANPR, NMFS announced that it is considering proposing 
regulations that would identify special sea turtle management areas in 
the southeastern Atlantic and Gulf of Mexico and impose additional 
conservation measures to protect sea turtles in these areas. Comments 
received on the ANPR and the revised ERP will be considered in future 
rulemaking.

Comments on the March 14, 1995 ERP and Temporary Requirements

    Since the publication of the ERP and the implementation of 
temporary requirements referenced above, NMFS has received numerous 
written comments and has also met with interested constituents to 
receive oral comments. Some comments were addressed through the 
temporary requirements cited in the previous section, but are again 
discussed here in order to present a complete record for decisions 
relating to the ERP.
    Comment. Individual shrimpers and the Texas Seafood Processors 
Association stated that the prohibition on all try nets without turtle 
excluder devices (TEDs) is unreasonable for those using small try nets.
    Response. NMFS determined that an alternative existed to the try 
net prohibition that would allow fishermen to work efficiently, while 
reducing the likelihood of turtle entrapment. Accordingly, NMFS 
modified the temporary requirements to allow the use of try nets 
without TEDs installed if the try nets were smaller than 12 feet (3.6 
m) in headrope length and 15 feet (4.6 

[[Page 52123]]
m) in footrope length, effective May 12, 1995 (60 FR 26691, May 18, 
1995). While this modification has been made in all temporary 
restrictions, the ERP is now being revised as well to reflect this 
change.
    Comment. The requirement to use a shortened flap over the escape 
opening results in excessive shrimp loss.
    Response. NMFS gear experts conducted underwater investigations on 
a top-opening hard TED with a shortened webbing flap and determined 
that it would not result in any significant shrimp loss. Furthermore, 
shrimp retention in TED-equipped nets can be maximized by use of an 
accelerator funnel which helps propel shrimp through TED grids and away 
from the turtle escape opening. However, NMFS has received numerous 
complaints from the shrimp industry about perceived loss of shrimp. 
Further, unlike 1994, NMFS has documented a high compliance rate with 
gear requirements, and therefore, believes that the shortened flap 
requirement should be re-evaluated on a case by case basis, but retains 
the shortened webbing flap requirement as part of the potential 
restrictive measures under the ERP.
    Comment. The Texas Shrimp Association (TSA) and the National 
Fisheries Institute (NFI) objected to the manner in which NMFS prepared 
and implemented the ERP. NFI and TSA asserted that the process of 
preparation precluded meaningful industry participation, circumvented 
requirements under the Administrative Procedure Act, and imposed TED 
use restrictions without adequate time for shrimpers to adjust. TSA 
proposed an alternative to the ERP to limit inshore and nearshore 
fishing activity, with the stated objective of relieving pressure from 
incidental capture in areas where turtles are concentrated.
    Response. The ERP was required by the November 14, 1994 Opinion in 
order to ensure that sea turtle mortalities attributable to shrimp 
fishing were not likely to jeopardize the species. The Opinion required 
that the ERP be developed by March 14, 1995, in order that NMFS have 
time to compile and analyze historic stranding data and still have a 
plan prior to the start of the 1995 shrimping season. The ERP does not 
modify the existing sea turtle conservation regulations nor does it 
have any binding effect on the public. The existing regulations already 
provide authority for emergency temporary action (such as TED use 
restrictions) to prevent unauthorized takings of sea turtles. The 
temporary restrictions implemented this season were based on the 
authority of 50 CFR 227.72(e)(6), and justification for these actions 
were contained in the record for each one. The ERP simply provides 
guidance on when and how NMFS will exercise its discretion in 
implementing such temporary measures under this existing regulatory 
authority. The ERP was widely distributed upon its completion in March 
and is published herein in its entirety for public review and comment. 
The TSA alternative proposal to limit inshore and nearshore fishing 
activity to protect turtles, if implemented, would involve major 
changes to current conservation measures and would be subject to the 
rulemaking process. TSA has submitted its proposal as a petition for 
rulemaking under the APA, and NMFS is reviewing this petition in the 
context of an ANPR (60 FR 47544, September 13, 1995).
    Comment. The Georgia Fisherman's Association (GFA) objected to the 
temporary restrictions in Georgia, particularly the prohibition on the 
use of bottom-shooting, hard TEDs and requested NMFS to rescind this 
restriction. The Sea Turtle Restoration Project of Earth Island 
Institute (EII) and NFI also urged NMFS to modify its temporary 
restriction as requested by GFA. GFA asserted that shrimpers were 
having problems with top-shooting hard TEDs because they lose shrimp, 
gather debris, are less effective at excluding turtles, and they twist 
and roll when installed with floats.
    NMFS has also received verbal reports from Georgia fishermen that 
debris accumulates in the top-opening TEDs, thus hindering the release 
of turtles. GFA agreed that the banning of soft TEDs was warranted as 
they are not as effective as hard TEDs, but GFA stated that the 
simultaneous ban on soft TEDs and bottom-opening hard TEDs would make 
analysis of the relative contributions of the two gear types to sea 
turtle mortality and strandings impossible.
    Response. Fishermen in the Atlantic have generally not used top-
opening hard TEDs in recent years and may be having particular 
difficulty adapting to a new gear type. NMFS has investigated 
shrimpers' complaints and has had gear specialists working with Georgia 
shrimpers during the imposition of the temporary restrictions.
    Gear specialists have been able to resolve problems associated with 
switching hard TEDs from bottom-opening to top-opening and in the 
installation of flotation devices to prevent nets from twisting. No 
problems with clogged top-opening TEDs which would trap sea turtles 
have been observed. NMFS specialists have also noted that as shrimpers 
become familiar with the gear changes they can fish effectively. In 
spite of the ability of NMFS gear specialists to resolve the alleged 
problems with top-opening hard TEDs experienced by individual shrimp 
fishermen in Georgia, NMFS has continued to receive complaints on the 
temporary prohibition of the use of bottom-opening hard TEDs, the 
strongly preferred gear choice for many Georgia fishermen.
    A preliminary analysis of recent strandings and compliance rates 
following the July 15, 1995 opening of Texas offshore waters to 
shrimping indicates that strandings were highest in areas where the use 
of soft TEDs was prevalent. In two areas in Texas where strandings were 
low, no difference in stranding rates could be distinguished based on 
the differing proportions of the fleet using top- versus bottom-opening 
hard TEDs. Although other factors, particularly the distribution of 
shrimping effort, may have contributed to the observed stranding 
patterns in Texas, the data suggested that prohibiting the use of soft 
TEDs would provide more effective protection for sea turtles than 
prohibiting the use of bottom-opening hard TEDs. Therefore, NMFS 
implemented only the soft TED and try net restrictions described in the 
ERP in Georgia and South Carolina in response to elevated sea turtle 
strandings (60 FR 42809, August 17, 1995). This approach was intended 
to protect sea turtles and to help determine the effectiveness of each 
restriction. However, strandings in waters off Georgia and South 
Carolina in the week following the implementation of these 
restrictions, met or exceeded the indicated incidental take levels 
(ITLs) established for those areas. Consequently, NMFS is re-evaluating 
its recent restrictions and may prohibit the use of bottom-opening hard 
TEDs and require the use of shortened webbing flaps over escape 
openings should high levels of strandings continue in these areas.
    Comment. The National Biological Survey (NBS), U.S. Department of 
the Interior, recommended that shrimp statistical Zone 21 be included 
in the interim special management area. NBS stated that a review of the 
stranding database shows that this area documents larger than average 
Kemp's ridley strandings when compared to the upper Texas Coast or 
Louisiana. NBS also asserted that Zone 21 was difficult to survey and 
therefore, strandings may go undocumented. NBS felt that the additional 
two weeks that would be required to implement restrictions in Zone 21 
may jeopardize the survival of the Kemp's ridley.

[[Page 52124]]

    Response. NMFS is investigating, as a requirement of the November 
14, 1994 Opinion, which areas should require special management 
considerations, due to high turtle abundance or important nesting or 
foraging habitats. Upon identification of such areas, NMFS will propose 
management measures to mitigate the effects of intensive shrimping 
pulses.
    Comment. The Center for Marine Conservation (CMC), EII, and the 
Houston Audubon Society and Help Endangered Animals-Ridley Turtles 
(HEART) supported in general the temporary conservation requirements to 
reduce turtle strandings as a reasonable compromise that allows 
shrimping to continue in a manner that is compatible with turtle 
conservation. However, EII felt that the ERP, in general, was too weak 
to provide for strong and clear trigger mechanisms that would prevent 
1994's high level of strandings. EII asserted that the accuracy of the 
indicated take levels (ITLs) established in the ERP were questionable. 
While recognizing the difficulty of accurately determining stranding 
levels in inshore waters, CMC noted that these waters are very 
important to turtles and urged that the temporary restrictions be 
imposed as necessary. HEART urged that the temporary restrictions be 
made permanent, describing a number of gear problems associated with 
soft TEDs, bottom-shooting TEDs and try nets. CMC and EII noted (as did 
NBS in the previous comment) that a 3-4 week waiting period to 
implement area closures is unacceptable for the Kemp's ridley; that it 
cannot tolerate another mass mortality event such as occurred in 1994. 
EII urged that NMFS issue a regulation that automatically implements 
gear restrictions or closures. Finally, CMC and EII urged that 
sufficient resources be devoted to monitor strandings, especially in 
Louisiana, where monitoring has been inadequate, but where fishing 
activity may have shifted with area gear restrictions in Texas.
    Response. NMFS recently published an ANPR (60 FR 47544, September 
13, 1995) to consider rulemaking identifying which areas should require 
special management considerations, due to high turtle abundance or 
important nesting or foraging habitats. Upon identification of such 
areas, NMFS will propose permanent management measures to mitigate the 
effects of intensive shrimping pulses. This action could also include 
bays and estuaries that are important to turtles and shrimping. Also, 
NMFS is considering, as a separate rulemaking, whether to propose 
severe restrictions on the use of soft TEDs, which have been repeatedly 
implicated as being ineffective at excluding turtles, often because of 
poor installation or maintenance.
    The ERP was designed to, among other things, identify NMFS plans to 
respond to high sea turtle strandings during 1995 through emergency 
rulemaking. A permanent management regime will be put forth as a 
proposed rule and the public provided ample opportunity for comment. 
Many elements of the ERP may be superseded once permanent rules are in 
place, by the 1996 shrimping season. The ERP is based on the best 
available scientific information gained through recent gear trials, the 
scientific literature on sea turtle biology and extensive discussions 
with gear and turtle scientists. In addition, the ERP (including the 
identified restrictions, and the indicated take levels) was presented 
at meetings with scientists and industry and comments were received.
    However, the NMFS Opinion issued on November 14, 1994 calls for an 
Expert Working Group (EWG) to be convened to identify the level of 
mortality that can be sustained by sea turtle populations, to determine 
the level of mortality reflected by strandings, and to identify an 
acceptable stranding level. NMFS convened the EWG in Miami June 26-28, 
1995 to review the Opinion and available data bases including those 
upon which the Opinion and the ERP are based. This expert working group 
consisted of sea turtle population biologists and life history experts 
including experts nominated by the shrimp industry and environmental 
community. As a result of this initial meeting, NMFS is completing 
additional data analyses which will be reviewed by the EWG in the next 
scheduled meeting in November.
    In addition, because of concerns expressed by some in industry and 
the environmental community, NMFS has undertaken an extensive technical 
review of the stranding triggers in the ERP. This review is planned to 
be completed in the next several weeks and NMFS plans to review its 
results with representatives of the shrimp industry and environmental 
community. If these analyses result in new trigger numbers, they will 
be included in subsequent publications of the revised ERP for public 
review.
    NMFS is also concerned that strandings be monitored accurately and 
comprehensively both on inshore and offshore facing beaches. NMFS 
increased its support for the monitoring of strandings, including in 
Louisiana, where there had previously been little or no coverage.

Revision of the Emergency Response Plan

    NMFS continues to review the ERP and has revised it as a result of 
public comments received and new technical information obtained. The 
ITLs, which were not available when the ERP was adopted in March, are 
published as part of the revised ERP. This ERP is NMFS' policy to 
ensure compliance with sea turtle conservation regulations and to 
respond to sea turtle stranding events. The revised ERP, in its 
entirety, follows.

The Sea Turtle/Shrimp Fishery Emergency Response Plan

    In developing this ERP, NMFS reviewed stranding data, as well as 
other information, that resulted in identification of certain areas 
that NMFS believes provide important habitat for Kemp's ridleys, and 
that, as part of the ERP, will be subject to continuous elevated 
scrutiny. These areas are identified in the ERP, and will allow NMFS to 
more efficiently conduct its enforcement operations under this plan. 
Identification of these areas in the ERP does not foreclose nor 
prejudge the identification of areas requiring special sea turtle 
management considerations, required as one of the components of the 
reasonable and prudent alternative within one year of the date of 
issuance of the Opinion, which will be subject to rulemaking 
procedures, including prior notice and opportunity to comment. Other 
activities within the special management areas, including hopper 
dredging, oil and gas activities, permitted power boat races, military 
operations and federally managed fisheries, are reviewed via the 
section 7 process of the ESA, but may also be reviewed during these 
rulemaking procedures, as necessary.

Indicated Take Levels

    The Opinion is accompanied by an incidental take statement, 
pursuant to section 7(b)(4)(i) of the ESA, that specifies the impact of 
incidental taking on the species. The incidental take statement 
provides two levels to identify the expected incidental take of sea 
turtles by shrimp fishing. The incidental take levels are based upon 
either documented takes or indicated takes measured by stranding data. 
Stranding data are considered an indicator of lethal take in the shrimp 
fishery during periods in which intensive shrimping effort occurs and 
there are no significant or intervening natural or human sources of 
mortality other than shrimping conclusively 

[[Page 52125]]
identified as the cause of strandings. While actual strandings in any 
zone in any week may meet or exceed the levels identified as the 
indicated take levels, this does not necessarily mean that the 
incidental take level for the shrimp fishery has been met or exceeded 
for purposes of section 7 of the ESA and that consultation is required 
to be reinstated pursuant to 50 CFR 402.16. Rather, NMFS must consider 
whether there are other natural or human sources of mortality other 
than shrimping that can be conclusively identified; strandings as a 
result of such sources will not be used in calculating whether the 
incidental take level for the shrimp fishery has been met or exceeded.
    NMFS has established ITLs by identifying the weekly average number 
of sea turtle strandings documented in each NMFS statistical zone for 
the last 3 years, 1992-94, while special consideration was given for 
anomalous years. In Texas, Louisiana, and Georgia, where strandings 
were anomalously high in 1994, the years 1991-93 were used to determine 
historical levels. In addition, the 1993 strandings of over 100 small 
Kemp's ridleys in a small section of Louisiana have been excluded from 
the averages due to the anomalous nature of that event. The weekly 
average was computed as a 5-week running average (2 weeks before and 
after the week in question) to reflect seasonally fluctuating events 
such as fishery openings and closures and turtle migrations. The ITL 
for each zone was set at 2 times the weekly 3-year stranding average. 
For weeks and zones where the historical average is less than one, the 
ITL has been set at two strandings. Table 1 contains the ITLs for each 
week and statistical zone, except for Zones 1-3, 6-17, 21, and 24, 
because the ITL is 2 for all weeks in these zones (note: there is no 
Zone 22 or 23).

Stranding Notification Procedures

    Sea Turtle stranding information is reported to the NMFS National 
Stranding Coordinator by the Sea Turtle Stranding and Salvage Network 
(STSSN). During 1995, STSSN State Coordinators submit weekly reports 
and contact the STSSN National Coordinator immediately if strandings 
approach or exceed historical averages. The STSSN National Coordinator 
will contact NMFS Southeast Regional Office, Protected Species Branch, 
and the NMFS National Sea Turtle Coordinator (NSTC) upon receipt and 
evaluation of information suggesting that strandings are elevated to 
near historical levels. The STSSN National Coordinator will be 
responsible for forwarding information regarding the strandings to the 
NMFS Southeast Regional Office.
    This early notification by STSSN State Coordinators will not 
necessarily initiate management actions, but will serve as notification 
that stranding levels are approaching levels that may require 
implementation of management measures in the ERP. Implementation of the 
ERP is defined below under A for interim special management areas and B 
for areas outside of the interim special management areas.

Public Notification Procedures

    Summaries of stranding reports, enforcement activities and other 
activities implementing the requirements of the November 14, 1994 BO 
will continue to be forwarded regularly via fax to NMFS laboratories, 
port samplers and enforcement agents, Coast Guard Districts, state 
fishery agencies, STSSN State Coordinators, Sea Grant agents, and 
industry and environmental organizations. Additionally, any emergency 
rulemaking will be announced through press releases and will be 
broadcast on the NOAA Weather Radio, immediately upon filing of the 
regulation for public inspection at the Office of the Federal Register.

Emergency Response Plan (ERP) Procedures

A. Interim Special Management Areas

    Data collected by the STSSN provide information regarding the 
species composition, nearshore distribution, and mortality of sea 
turtles. Stranding data illustrated by statistical zones identify two 
areas of historically high Kemp's ridley strandings including much of 
Texas and Louisiana, and the coast of Georgia and northeast Florida. 
Although few strandings have been reported in statistical zones of low 
STSSN effort in Louisiana, in-water research, including telemetry and 
mark/recapture efforts, and historical data, have illustrated the 
importance of Louisiana waters (as well as those of Texas) as Kemp's 
ridley habitat.
    Historical stranding levels indicate that NMFS can anticipate 
elevated Kemp's ridley strandings within these two areas. These areas 
therefore require elevated scrutiny and protection under this Plan to 
reduce the impacts of the shrimp fishery on Kemp's ridleys. The 
Northern Gulf Interim Special Management Area includes waters off 
Louisiana and Texas seaward of the COLREGS line within NMFS statistical 
zones from (and including) Zone 13 through Zone 20 out to 10 nautical 
miles (nm) (18.5 km). The Atlantic Interim Special Management Area 
includes waters off Georgia and northeast Florida seaward of the 
COLREGS line within NMFS statistical Zones 30 and 31 out to 10 nm (18.5 
km).
    Through the section 7 consultation process, other activities within 
the special management areas are also being reviewed, including hopper 
dredging, oil and gas activities, permitted power boat races, military 
operations and federally managed fisheries. During 1995, observers will 
be deployed during these activities as needed.
Elevated Enforcement Within the Interim Special Management Areas
    In 1995, from April 1 through November 30, members of a trained TED 
law enforcement team will coordinate with the Coast Guard, local NMFS 
and state enforcement agents to investigate compliance with TED 
regulations in the Interim Special Management Areas. Throughout this 
period, members of the TED law enforcement team (in addition to local 
NMFS enforcement personnel) will be deployed in the Interim Special 
Management Areas, including at least one in the Atlantic Interim 
Special Management area.
Implementation of Emergency Rules Within the Special Management Areas
    Reports of elevated stranding levels, as described below, in any 
statistical zone within the Interim Special Management Areas may result 
in implementation of emergency rulemaking for the NMFS statistical zone 
of elevated strandings, and contiguous statistical zones or portions of 
contiguous statistical zones, as necessary. The precise geographic 
scope of the area requiring such measures will be defined in the rule. 
Within the Interim Special Management Areas, regulations restricting 
shrimping will be implemented when 75 percent or more of the weekly ITL 
is reached for 2 consecutive weeks, or when the Assistant Administrator 
for Fisheries, NOAA (AA), in consultation with the Director, Southeast 
Region, NMFS (Regional Director), the Southeast Enforcement Division 
Special Agent in Charge (SAC), the Southeast General Counsel Senior 
Enforcement Attorney (SEA) and the Protected Resources Office Director 
(OD), determines that other factors including noncompliance or high 
nearshore shrimping effort require additional management measures. Any 
restrictions necessary within the Interim Special Management Areas will 
result in emergency rulemaking pursuant to the regulations under 50 CFR 
227.72(e)(6). Justification for the rulemaking will be included in 

[[Page 52126]]
the Federal Register notice, and will include the best readily 
available information on:
    a. Affected area;
    b. Current and historical strandings, shrimp landings and shrimping 
effort (if available). Any unusual aspect of the strandings will be 
identified (e.g., species composition, size classes, and carcass 
anomalies);
    c. Enforcement efforts with emphasis on boardings and compliance;
    d. Other mortality factors if any, and unusual environmental 
conditions, with an evaluation of their significance; and
    e. Any fishing practices or gear types that may be contributing to 
the strandings (e.g., percent soft TEDs as determined from enforcement 
boardings).
    Restrictions on the fishery will include any or all of the 
following:
    1. The use of soft TEDs described in 50 CFR is prohibited.
    2. The use of hard TEDs with bottom escape openings and special 
hard TEDs with bottom escape openings is prohibited. Approved hard TEDs 
and special hard TEDs must be configured with the slope of the 
deflector bars upward from forward to aft and with the escape opening 
at the top of the trawl.
    3. The use of try nets with a headrope length greater than 12 ft 
(3.6 m) or a footrope length greater than 15 ft (4.6 m) is prohibited 
unless a NMFS-approved top-opening, hard TED or special hard TED is 
installed when the try nets are rigged for fishing. Try nets with a 
headrope length 12 ft (3.6 m) or less and a footrope length 15 ft (4.6 
m) or less would be exempt from the TED-use requirement in accordance 
with 50 CFR 227.72 (e)(2)(ii)(B)(1).
    4. The use of a webbing flap that completely covers the escape 
opening in the trawl is prohibited. Any webbing that is attached to the 
trawl, forward of the escape opening, be cut to such a length that the 
trailing edge of such webbing does not approach to within 2 inches (5.1 
cm) of the posterior edge of the TED grid. The requirements for the 
size of the escape opening would be unchanged.
    These restrictions will be implemented through emergency rulemaking 
pursuant to the regulations under 50 CFR 227.72(e)(6), and will remain 
in effect for 30 days. Changes to the restrictions, or to the size and 
extent of the area covered by the restrictions, and any extension of 
the restrictions may be required through additional 30-day rules. All 
restrictions will be predicated on ensuring protection to sea turtles.
Area Closures Within the Special Management Areas
    Two consecutive weeks of elevated strandings, at 75 percent or more 
of the ITL after implementation of an emergency rule restricting shrimp 
fishing, will result in area closures from the COLREGS line, out to 10 
nm (18.5 km) within the statistical zone of elevated strandings, and 
contiguous statistical zones or portions of contiguous zones, as 
necessary. Area closures will be implemented through emergency 
rulemaking notices pursuant to 50 CFR 227.72(e)(6), and will remain in 
effect for 30 days. Changes to the size and extent of the area closure, 
and any extension of the closure, may be required through additional 
30-day rules.
Decision Not to Implement Restriction or Closures Within Special 
Management Areas
    The Regional Director, in consultation with the SAC, SEA, and the 
OD, may make a determination that emergency rulemaking is not necessary 
despite stranding levels reaching or exceeding 75 percent of the ITL 
for 2 consecutive weeks within the Interim Special Management Areas. 
This determination will be summarized in a Memorandum for the Record, 
and must receive the concurrence of the AA. The Memorandum for the 
Record will include the information listed in a. through e., above, 
must demonstrate that sea turtle mortalities appear to be due to 
sources other than shrimping, and must identify actions that can be 
taken immediately to reduce nearshore mortalities.

B. Areas Outside of the Interim Special Management Areas

(Zones 1 through 11, 21 through 29, and 32 through 36)
    The STSSN National Coordinator, with assistance from PSB staff and 
the NSTC as requested, will be responsible for communicating with the 
STSSN State Coordinators to evaluate local conditions and mortality 
factors present in the statistical zones of elevated strandings. The 
best available information will be solicited and reviewed through 
communication with appropriate NMFS laboratories as well as state and 
local marine scientists and managers. The local NMFS enforcement agent, 
Coast Guard and state enforcement agency may also be asked to increase 
enforcement efforts within statistical zones of elevated strandings.
    A consensus Decision Memorandum to the RD will be prepared by PSB 
staff, the STSSN National Coordinator, and the NSTC regarding whether 
further action is warranted in any statistical zone within which 
strandings remain elevated above historical levels for 1 month. The 
Decision Memorandum must be timely and contain the following best 
readily available information:
    a. Affected area;
    b. Current and historical strandings, shrimp landings and shrimping 
effort (if available). Any unusual aspect of the strandings will be 
identified (e.g., species composition, size classes, and carcass 
anomalies);
    c. Enforcement efforts with emphasis on boardings and compliance;
    d. Other mortality factors if any, and unusual environmental 
conditions, with an evaluation of their significance;
    e. Identification of any fishing practices or gear types that may 
be contributing to the strandings (for e.g., percent soft TEDs as 
determined from enforcement boardings); and
    f. Recommended further actions, if any, which may include continued 
investigation, elevated enforcement, or implementation of emergency 
regulations restricting shrimping or closing areas. Restrictions if 
necessary, will be consistent with those described within the 
discussion of the interim special management areas under A., above.
    The Regional Director, in consultation with the SAC, SEA, and the 
OD, will make a determination regarding further action within 48 hours 
of receipt of the Decision Memorandum. Actions contrary to those 
recommended in the Decision Memorandum must be summarized in a 
Memorandum for the Record, and receive the concurrence of the AA. 
Continued elevated strandings reaching or exceeding 75 percent of the 
ITL for more than 2 consecutive weeks after restrictions are taken, as 
noted in item f. under B. and listed in A., may result in area closures 
from the COLREGS line, out to 10 nm (18.5 km) within the statistical 
zone of elevated strandings, and contiguous zones or portions of 
contiguous zones, as necessary.

Request for Comments

    Any emergency rulemaking that may be necessary to implement the ERP 
will be implemented pursuant to 50 CFR 227.72(e)(6) and the 
Administrative Procedure Act, 5 U.S.C. 551 et seq. Since NMFS received 
comments on the rule establishing 50 CFR 227.72(e)(6) in 1992, and 
since full opportunity for public comment may not exist if temporary 
restrictions must be implemented on an emergency basis, NMFS is 
requesting comments on this 

[[Page 52127]]
revised ERP. NMFS will evaluate all comments received and will consider 
making additional revisions to the ERP to incorporate public comments.
    Furthermore, the Opinion requires a number of other management 
initiatives. In fulfilling one of these requirements, a rule is being 
prepared to establish special sea turtle management areas and/or 
contingency restrictions to the shrimp fishery (60 FR 47544, September 
13, 1995). Such rulemaking will be done through normal rulemaking 
procedures, including publication of a proposed rule with a public 
comment period and, as appropriate, public hearings, prior to 
publication of a final rule with a delayed effective date. Public 
comments which provide alternative management measures for ensuring 
successful operation of the shrimp trawl fishery while promoting 
recovery of sea turtle populations may be used in the development of a 
proposed rule. Such comments are therefore specifically solicited. All 
comments received on this ERP will also be considered during that 
rulemaking.

    Dated: September 26, 1995.
Nancy Foster,
Deputy Assistant Administrator for Fisheries, National Marine Fisheries 
Service.

APPENDIX TO STATEMENT OF POLICY--TABLES

                                  Table 1.--Sea Turtle Indicated Take Level (ITL) for Shrimp Fishery Statistical Zones                                  
        [Zones 1-3, 6-17, 21, and 24 are not included in the table because the ITL is 2 for all weeks in these Zones. There is no Zone 22 or 23.]       
--------------------------------------------------------------------------------------------------------------------------------------------------------
                    Gulf of Mexico                       Zone 4     Zone 5    Zone 18    Zone 19    Zone 20    Zone 25    Zone 26    Zone 27    Zone 28 
--------------------------------------------------------------------------------------------------------------------------------------------------------
   Week                    Week period                    ITL        ITL        ITL        ITL        ITL        ITL        ITL        ITL        ITL   
--------------------------------------------------------------------------------------------------------------------------------------------------------
 1........  1/1-1/7..................................          2          2          2          2          2          2          2          3          2
 2........  1/8-1/14.................................          2          2          2          2          2          2          2          4          2
 3........  1/15-1/21................................          2          2          2          2          2          2          2          4          2
 4........  1/22-1/28................................          2          2          2          2          2          2          2          5          2
 5........  1/29-2/4.................................          2          2          2          2          2          2          2          5          2
 6........  2/5-2/11.................................          2          2          2          2          2          2          2          6          3
 7........  2/12-2/18................................          2          2          2          2          2          2          2          5          3
 8........  2/19-2/25................................          2          2          2          2          2          2          2          4          3
 9........  2/26-3/4.................................          2          2          2          2          2          2          3          5          2
10........  3/5-3/11.................................          2          2          2          2          2          2          3          5          3
11........  3/12-3/18................................          2          2          2          2          2          2          3          4          3
12........  3/19-3/25................................          2          3          2          2          3          2          3          5          3
13........  3/26-4/1.................................          2          2          2          2          3          2          3          6          5
14........  4/2-4/8..................................          2          2          2          2          3          2          3          5          6
15........  4/9-4/15.................................          2          2          2          2          4          2          2          5          6
16........  4/16-4/22................................          2          2          3          2          4          2          3          6          6
17........  4/23-4/29................................          2          3          3          2          4          2          4          7          6
18........  4/30-5/6.................................          3          3          4          2          3          2          4          7          5
19........  5/7-5/13.................................          3          3          3          2          3          2          4          7          6
20........  5/14-5/20................................          3          4          2          2          2          2          5          7          6
21........  5/21-5/27................................          3          3          2          2          2          2          6          7          5
22........  5/28-6/3.................................          3          2          2          2          2          3          5          6          7
23........  6/4-6/10.................................          2          2          2          2          2          2          5          5          7
24........  6/11-6/17................................          3          2          2          2          2          2          5          5          6
25........  6/18-6/24................................          3          2          2          2          2          2          5          5          5
26........  6/25-7/1.................................          2          2          3          2          2          2          5          4          5
27........  7/2-7/8..................................          2          2          3          3          2          2          5          4          4
28........  7/9-7/15.................................          2          2          3          3          2          2          5          4          3
29........  7/16-7/22................................          2          2          3          3          2          2          5          5          4
30........  7/23-7/29................................          2          2          4          4          2          2          4          4          5
31........  7/30-8/5.................................          2          2          3          2          2          2          3          4          5
32........  8/6-8/12.................................          2          2          2          2          2          2          4          4          4
33........  8/13-8/19................................          2          2          2          2          2          2          3          4          4
34........  8/20-8/26................................          2          2          3          2          2          2          3          3          4
35........  8/27-9/2.................................          2          2          3          2          2          2          3          4          4
36........  9/3-9/9..................................          2          2          3          2          2          2          3          4          4
37........  9/10-9/16................................          2          2          4          2          2          2          2          4          4
38........  9/17-9/23................................          2          2          4          2          2          2          2          4          4
39........  9/24-9/30................................          2          2          4          2          2          2          2          4          4
40........  10/1-10/7................................          2          2          4          2          2          2          2          3          3
41........  10/8-10/14...............................          2          2          3          2          2          2          2          2          3
42........  10/15-10/21..............................          2          2          2          2          2          2          2          2          3
43........  10/22-10/28..............................          2          2          2          2          2          2          2          2          3
44........  10/29-11/4...............................          2          2          2          2          2          2          2          2          2
45........  11/5-11/11...............................          2          2          2          2          2          2          2          2          2
46........  11/12-11/18..............................          2          2          2          2          2          2          2          2          2
47........  11/19-11/25..............................          2          2          2          2          2          2          2          2          2
48........  11/26-12/2...............................          2          2          2          2          2          2          2          2          2
49........  12/3-12/9................................          2          2          2          2          2          2          2          2          2
50........  12/10-12/16..............................          2          2          2          2          2          2          2          2          2
51........  12/17-12/23..............................          2          2          2          2          2          2          2          2          2
52........  12/24-12/31..............................          2          2          2          2          2          2          2          3          2
--------------------------------------------------------------------------------------------------------------------------------------------------------


                                                                                                                                                        

[[Page 52128]]
                                  Table 1.--Sea Turtle Indicated Take Level (ITL) for Shrimp Fishery Statistical Zones                                  
        [Zones 1-3, 6-17, 21, and 24 are not included in the table because the ITL is 2 for all weeks in these Zones. There is no Zone 22 or 23.]       
--------------------------------------------------------------------------------------------------------------------------------------------------------
                       Southeast Atlantic                          Zone 29    Zone 30    Zone 31    Zone 32    Zone 33    Zone 34    Zone 35    Zone 36 
--------------------------------------------------------------------------------------------------------------------------------------------------------
   Week                          Week Period                         ITL        ITL        ITL        ITL        ITL        ITL        ITL        ITL   
--------------------------------------------------------------------------------------------------------------------------------------------------------
 1........  1/1-1/7.............................................          2          2          2          2          2          2          2          2
 2........  1/8-1/14............................................          2          2          2          2          2          2          2          2
 3........  1/15-1/21...........................................          2          2          2          2          2          2          2          2
 4........  1/22-1/28...........................................          2          2          2          2          2          2          2          2
 5........  1/29-2/4............................................          2          2          2          2          2          2          2          2
 6........  2/5-2/11............................................          2          2          2          2          2          2          2          2
 7........  2/12-2/18...........................................          2          2          2          2          2          2          2          2
 8........  2/19-2/25...........................................          2          2          2          2          2          2          2          2
 9........  2/26-3/4............................................          2          2          2          2          2          2          2          2
10........  3/5-3/11............................................          2          2          2          2          2          2          2          2
11........  3/12-3/18...........................................          2          2          2          2          2          2          2          2
12........  3/19-3/25...........................................          2          2          2          2          2          2          2          2
13........  3/26-4/1............................................          4          2          2          2          2          2          2          2
14........  4/2-4/8.............................................          5          3          2          2          2          2          2          2
15........  4/9-4/15............................................          5          5          2          2          2          2          2          2
16........  4/16-4/22...........................................          5          5          2          2          2          2          2          2
17........  4/23-4/29...........................................          5          6          3          3          2          3          2          2
18........  4/30-5/6............................................          5          9          5          3          3          3          2          2
19........  5/7-5/13............................................          4         11          7          5          4          3          2          2
20........  5/14-5/20...........................................          4         11          7          6          4          5          3          2
21........  5/21-5/27...........................................          4         11          8          8          4          5          4          2
22........  5/28-6/3............................................          4         11          8          8          4          5          4          2
23........  6/4-6/10............................................          4          9          7          9          4          7          5          2
24........  6/11-6/17...........................................          3          8          6          8          4          7          5          2
25........  6/18-6/24...........................................          2          7          6          7          5          6          3          2
26........  6/25-7/1............................................          2          6          6          6          6          6          2          2
27........  7/2-7/8.............................................          2          7          5          5          7          6          2          2
28........  7/9-7/15............................................          2          8          6          4          9          4          2          2
29........  7/16-7/22...........................................          2          7          5          4          9          4          2          2
30........  7/23-7/29...........................................          3          8          5          4          8          3          2          2
31........  7/30-8/5............................................          3          9          4          3          7          2          2          2
32........  8/6-8/12............................................          4          7          4          3          5          2          2          2
33........  8/13-8/19...........................................          4          6          5          3          4          2          2          2
34........  8/20-8/26...........................................          3          7          6          3          3          2          2          2
35........  8/27-9/2............................................          3          7          5          4          3          2          2          2
36........  9/3-9/9.............................................          2          6          5          4          3          2          2          2
37........  9/10-9/16...........................................          2          5          5          3          4          2          2          2
38........  9/17-9/23...........................................          2          4          3          2          3          2          2          2
39........  9/24-9/30...........................................          2          2          2          2          3          2          2          2
40........  10/1-10/7...........................................          2          2          2          2          2          2          2          2
41........  10/8-10/14..........................................          2          2          2          2          2          2          2          2
42........  10/15-10/21.........................................          2          2          2          2          2          3          4          4
43........  10/22-10/28.........................................          2          2          2          2          2          4          5          4
44........  10/29-11/4..........................................          3          2          2          2          2          4          7          4
45........  11/5-11/11..........................................          3          2          2          2          2          4         11          4
46........  11/12-11/18.........................................          3          2          2          2          2          4         11          4
47........  11/19-11/25.........................................          2          2          2          2          2          3         10          2
48........  11/26-12/2..........................................          2          2          2          2          2          2          9          2
49........  12/3-12/9...........................................          2          2          2          2          2          2          6          2
50........  12/10-12/16.........................................          2          2          2          2          2          2          2          2
51........  12/17-12/23.........................................          2          2          2          2          2          2          2          2
52........  12/24-12/31.........................................          2          2          2          2          2          2          2          2
--------------------------------------------------------------------------------------------------------------------------------------------------------

                                                                                                                                               ---------
[FR Doc. 95-24608 Filed 10-4-95; 8:45 am]
BILLING CODE 3510-22-W