[Federal Register Volume 64, Number 35 (Tuesday, February 23, 1999)]
[Proposed Rules]
[Pages 8735-8755]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-4424]


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DEPARTMENT OF AGRICULTURE

Animal and Plant Health Inspection Service

9 CFR Part 3

[Docket No. 93-076-11]
RIN 0579-AA59


Animal Welfare; Marine Mammals

AGENCY: Animal and Plant Health Inspection Service, USDA.

ACTION: Proposed rule.

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SUMMARY: We are proposing to amend the Animal Welfare Act regulations 
concerning the humane handling, care, treatment, and transportation of 
marine mammals in captivity. These proposed regulations were developed 
by the Marine Mammal Negotiated Rulemaking Advisory Committee and 
appear to be necessary to ensure that the minimum standards for the 
humane handling, care, treatment, and transportation of marine mammals 
in captivity are based on current general, industry, and scientific 
knowledge and experience.

DATES: Consideration will be given only to comments received on or 
before April 26, 1999.

ADDRESSES: Please send an original and three copies of your comments to 
Docket No. 93-076-11, Regulatory Analysis and Development, PPD, APHIS, 
suite 3C03, 4700 River Road Unit 118, Riverdale, MD 20737-1238. Please 
state that your comments refer to Docket No. 93-076-11. Comments 
received may be inspected at USDA, room 1141, South Building, 14th 
Street and Independence Avenue SW., Washington, DC, between 8 a.m. and 
4:30 p.m., Monday through Friday, except holidays. Persons wishing to 
inspect comments are requested to call ahead on (202) 690-2817 to 
facilitate entry into the comment reading room.

FOR FURTHER INFORMATION CONTACT: Dr. Barbara Kohn, Senior Staff 
Veterinarian, Animal Care, APHIS, 4700 River Road Unit 84, Riverdale, 
MD 20737-1228, (301) 734-7833.

SUPPLEMENTARY INFORMATION:

Background

    The Animal Welfare Act (the Act) (7 U.S.C. 2131 et seq., enacted in 
1966 and amended in 1970, 1976, 1985, and 1990) authorizes the 
Secretary of Agriculture to promulgate standards and other requirements 
governing the humane handling, care, treatment, and transportation of 
certain animals by dealers, research facilities, exhibitors, and 
carriers and intermediate handlers. Regulations established under the 
Act are contained in 9 CFR parts 1, 2, and 3.
    The Animal and Plant Health Inspection Service (APHIS) of the 
United States Department of Agriculture established regulations under 
the Act in 1979 for the humane handling, care, treatment, and 
transportation of marine mammals used for research or exhibition 
purposes. These standards, contained in 9 CFR part 3, subpart E, were 
amended in 1984. During the 14 years since the standards were amended, 
advances have been made, new information has been developed, and new 
concepts have been implemented with regard to the handling, care, 
treatment, and transportation of marine mammals in captivity.
    On July 23, 1993, APHIS published in the Federal Register (58 FR 
39458, Docket No. 93-076-1) an advance notice of proposed rulemaking 
that solicited comments on appropriate revisions or additions to the 
standards for the humane handling, care, treatment, and transportation 
of marine mammals used for research or exhibition (referred to below as 
the regulations). The comments we received supported our intent to 
revise the regulations and suggested it would be highly desirable to 
involve all interested parties in developing appropriate regulations. 
We determined that consensus among interested parties was attainable, 
and that we should proceed with negotiated rulemaking.
    On May 22, 1995, we published in the Federal Register (60 FR 27049-
27051, Docket No. 93-076-3) a notice of intent to establish an advisory 
committee to advise the Department on how to revise the regulations. 
The notice included a list of groups tentatively identified by the 
Department as potential participants on the advisory committee. A 
committee, called the Marine Mammal Negotiated Rulemaking Advisory 
Committee (the Committee), was subsequently established in accordance 
with the Federal Advisory Committee Act (5 U.S.C. App. I). It included 
all of the groups that were identified in the notice as potential 
participants, with the exception of the Society for Marine Mammology, 
which was unable to participate.
    The following organizations were included on the Committee as 
voting members:

American Zoo and Aquarium Association
Alliance of Marine Mammal Parks and Aquariums
International Association of Amusement Parks and Attractions
Marine Mammal Coalition
United States Navy
Center for Marine Conservation
Humane Society of the United States
Animal Welfare Institute, representing a broad coalition of animal 
concern groups
American Association of Zoo Veterinarians
International Association for Aquatic Animal Medicine
International Marine Animal Trainers Association
Animal and Plant Health Inspection Service

    The following organizations or individuals were included on the 
Committee as observers or consultants. These individuals did not vote 
on the final consensus reached by the Committee:

Marine Mammal Commission
National Marine Fisheries Service
Fish and Wildlife Service
Dr. Joseph Geraci, independent consultant to the Committee


[[Page 8736]]


    The Committee conducted three sessions, on September 25 and 26, 
1995, in College Park, MD; on April 1, 2, and 3, 1996, in Riverdale, 
MD; and on July 8, 9, and 10, 1996, in Riverdale, MD. All meetings were 
open to the public, with specified times during the meetings 
established for public participation and comment.
    Under the rules governing the negotiated rulemaking process, and in 
accordance with the organizational protocols established by the 
Committee, APHIS agreed to publish as a proposed rule any consensus 
language developed during the meetings unless substantive changes were 
made as a result of authority exercised by another Federal government 
entity. Committee members agreed to refrain from commenting negatively 
on the consensus-based language in the proposed rule. Consensus 
language was reached on 13 of the 18 sections that comprise the 
regulations, and on one paragraph in a fourteenth section: Secs. 3.101, 
3.104(a), 3.105, 3.107 through 3.110, and 3.112 through 3.118. Sections 
3.101 and 3.104(a) contain facility and operating standards. Section 
3.101 contains general requirements for facilities housing marine 
mammals, including construction, water and power supply, drainage, 
storage, waste disposal, and washroom facilities; Sec. 3.104(a) 
contains general space requirements for primary enclosures. Sections 
3.105 and 3.107 through 3.110 concern animal health and husbandry. 
Section 3.105 contains feeding requirements; Sec. 3.107 concerns 
sanitation and pest control; Sec. 3.108 sets standards for employees 
and attendants; Sec. 3.109 concerns separation of marine mammals; and 
Sec. 3.110 concerns veterinary care. Sections 3.112 through 3.118 
concern transportation of marine mammals. Section 3.112 concerns 
consignment of marine mammals to carriers and intermediate handlers; 
Sec. 3.113 contains standards for primary enclosures used to transport 
marine mammals; Sec. 3.114 contains standards for primary conveyances 
used to transport marine mammals; Sec. 3.115 contains requirements for 
provision of food and water during transport; Sec. 3.116 concerns the 
care of marine mammals by employees or attendants during transport; 
Sec. 3.117 concerns terminal facilities; and Sec. 3.118 contains 
requirements for handling marine mammals during transport.
    This proposed rule contains the consensus language developed by the 
Committee for these sections of the regulations. No Federal government 
entity made any substantive changes to this language. The Committee 
considered the remaining sections of the marine mammal regulations, 
but, because there was not enough time, did not reach consensus on 
changes to these sections. With one exception, only sections on which 
consensus language was attained are included in this proposed rule. The 
exception is a provision in current Sec. 3.110(d) concerning 
maintenance of necropsy records. We have included this provision in 
Sec. 3.110(g)(2) in this proposed rule. Consensus on this provision was 
not attained. We are including it in this proposed rule in order to 
complete the section. Further, including the provision will allow 
members of the Committee and other interested persons to comment on it, 
especially as it pertains to the consensus paragraphs in Sec. 3.110. 
Amendments to the remaining sections in the regulations are currently 
being considered by APHIS and will be proposed in a separate Federal 
Register document for comment at that time. Comments on this proposal 
should be confined to the proposed language in this document.

Proposed Rule

Facilities and Operating Standards

    As discussed above, consensus language was reached for Secs. 3.101 
and 3.104(a) of the marine mammal regulations. Sections 3.101 and 3.104 
address facilities and operating standards.
    In Sec. 3.101, paragraph (a)(1) requires that indoor and outdoor 
housing facilities for marine mammals be structurally sound and 
maintained in good repair to protect animals from injury, to contain 
the animals, and to restrict the entry of unwanted animals. We are 
proposing to additionally specify that lagoon and similar natural 
seawater facilities must maintain effective barrier fences or other 
appropriate barrier measures around all sides of the enclosure not 
contained by dry land, and that the barriers must extend above the high 
tide water level. Such barriers for lagoon and natural seawater 
facilities would contain the marine mammals within the facility and 
restrict the entry of unwanted animals. During the negotiated 
rulemaking discussions, the Committee agreed that this requirement in 
not intended to preclude the temporary (less than 1 day at a time) 
lowering or removal of part of the barrier fencing above the water line 
to accommodate filming or similar actions. It would remain the 
facility's responsibility to ensure the safety and containment of the 
marine mammals at all times.
    Section 3.101, paragraph (a)(2), requires that all marine mammals 
be protected from abuse and harassment by the viewing public by the use 
of a sufficient number of employees or attendants to supervise the 
viewing public, or by physical barriers, such as fences, walls, glass 
partitions, or distance. We are proposing to require that the employees 
and attendants be uniformed or in some way readily identifiable as 
employees or attendants of the facility. The Committee believes that 
the presence of persons readily identifiable as employees or attendants 
of the facility is necessary to deter abuse and harassment of animals 
by the public, and to readily identify persons to whom questions or 
complaints may be directed.
    Section 3.101, paragraph (a)(3), requires that a primary enclosure 
(except for natural seawater pools subject to tidewater action) be 
constructed of materials that have a nonporous, waterproof finish, and 
that facilitate proper cleaning and disinfection, and be maintained in 
good repair as part of a regular ongoing maintenance program. Paragraph 
(a)(3) further states that any ramps or haul-out areas for primary 
enclosure pools, and any natural seawater pools subject to tidal 
action, must be constructed of materials that facilitate proper 
cleaning and disinfection and must be maintained in good repair as part 
of a regular ongoing maintenance program. The Committee believes that 
these requirements do not accommodate changes and advances in marine 
habitat design, or materials used in marine habitats that may not be 
amenable to disinfection. For example, some primary enclosures designed 
to be realistic include wood or textured surfaces that are difficult to 
disinfect completely. Further, the Committee does not believe that 
absolute disinfection is necessary in cases where the habitat design is 
not amenable to it.
    We are proposing to revise paragraph (a)(3) to require that all 
surfaces in a primary enclosure be constructed of durable, nontoxic 
material that facilitates cleaning, and, as appropriate, disinfection. 
We further propose to require that materials used be compatible with 
maintaining the water quality parameters specified in Sec. 3.106 of the 
regulations. (The standards for water quality contained in Sec. 3.106 
generally address bacterial standards, salinity, filtration, and water 
flow.) Additionally, we propose to require facilities to develop and 
follow a written protocol for cleaning enclosure surfaces that does not 
employ methods or materials hazardous to the marine

[[Page 8737]]

mammals. Having a written protocol would help ensure that facility 
employees have clear directions and would provide a written plan that 
could be evaluated by APHIS inspectors if a problem arises. Specific 
references to natural seawater facilities are not included in the 
proposed language because the Committee judged it unnecessary to 
distinguish between these and other kinds of facilities, given the 
proposed language. Even though natural seawater facilities are not made 
predominantly of materials that can be cleaned and disinfected, they 
may have constructed barrier fences or other structures that should be 
maintained as in other facilities. The intent of proposed paragraph 
(a)(3) is to ensure that all surfaces that can be cleaned and 
disinfected are cleaned and disinfected.
    Section 3.101, paragraph (a)(4), exempts facilities that utilize 
natural water areas, such as tidal basins, bays, or estuaries (subject 
to natural tidewater action), for housing marine mammals from the 
drainage requirements in Sec. 3.101(c)(1) (discussed later in this 
document). Paragraph (a)(4) also provides that, regardless of the 
exemption stated above, facilities must meet the minimum standards with 
regard to space, depth, and sanitation, and must monitor the water for 
coliforms and for pH and chemical content, if chemicals are added. We 
are proposing to remove the language concerning the minimum standards 
with regard to space, depth, and sanitation, and for monitoring the 
water coliforms and pH and chemical content. Requirements for meeting 
minimum space standards are contained in Sec. 3.104, and requirements 
for monitoring water for coliforms and pH and chemicals are contained 
in Sec. 3.106. The Committee believes that these changes would simplify 
the paragraph without substantively changing the requirements for 
natural water area facilities.
    Section 3.101, paragraph (b), requires that reliable and adequate 
sources of water and electric power be provided by the facility, and 
that written contingency plans be submitted to and approved by APHIS' 
Veterinary Services regarding emergency sources of water and electric 
power in the event of failure of the primary sources. We are proposing 
two changes to paragraph (b). First, we would require that written 
contingency plans be submitted to the Deputy Administrator of Animal 
Care, rather than to Veterinary Services. This change is necessary 
because, since the last amendments to subpart E, APHIS reorganized so 
that Animal Care is no longer part of APHIS' Veterinary Services 
program, but is an independent APHIS program. Additionally, we are 
proposing to require that contingency plans include, but not be limited 
to, specific animal evacuation plans in the event of a disaster, and 
that the plans should describe back-up systems and/or arrangements for 
relocating marine mammals requiring artificially cooled or heated 
water. If a contingency plan includes release of marine mammals, the 
plan also would have to include provisions for recall training and 
retrieval of the animals.
    Paragraph (c) of Sec. 3.101 concerns drainage. Paragraph (c)(1) 
requires, among other things, that adequate drainage be provided for 
all primary enclosure pools in marine mammal facilities, and that 
drainage be located so that all of the water contained in the pools may 
be ``rapidly eliminated'' when necessary for cleaning the pools or for 
other purposes. We are proposing to change the phrase ``rapidly 
eliminated'' to ``effectively eliminated.'' ``Rapid'' emptying of 
enclosure pools is not always practical and, in some cases, can be 
unsafe for both humans and animals. For example, a 2 million gallon 
pool cannot be rapidly emptied without having a drain and pipes that 
are extremely large, much larger than needed for water circulation. 
Further, if a pool is rapidly emptied with an animal or human in the 
water, the animal or human could be pulled down by an undertow or be 
trapped in the drain. The intended goal of the requirement is to ensure 
that all water in the pool can be eliminated when necessary. The 
Committee believes ``effectively eliminated'' is a better term to 
convey this intended goal.
    In Sec. 3.101, paragraph (c)(2) requires, among other things, that 
drainage be provided for primary enclosures and areas immediately 
surrounding pools. Members of the Committee were concerned about the 
possibility of animals becoming entrapped by suction created by the 
drains. This can occur when a drain cover or strainer becomes 
unfastened so that the drain hole is exposed. To help prevent the 
possibility of such occurrences, we are proposing to add a requirement 
to paragraph (c)(2) that all drain covers and strainers be securely 
fastened to minimize the risk of animal entrapment.
    Paragraph (d) of Sec. 3.101 concerns food storage, and requires 
that supplies of food be stored in facilities that adequately protect 
the food supplies from deterioration, molding, or contamination by 
vermin. We are proposing to state instead that the food supplies must 
be protected from deterioration, spoilage (meaning harmful microbial 
growth), vermin, or other contamination. The Committee believes that 
the proposed change is necessary to address microbial growth and other 
potential contaminants, such as bacteria or chemicals. Paragraph (d) 
also requires that refrigerators and freezers be used for perishable 
food. We are proposing to permit temporary storage of food in chilled 
and/or iced coolers for periods of less than 12 hours. This change 
would accommodate the practice of using coolers to bring food to the 
marine mammal enclosure to be used throughout the day. The intent of 
the Committee in agreeing to this proposed addition is that the chilled 
and/or iced coolers would have to function adequately and have 
sufficient ice and insulation to maintain the integrity of the food 
inside. Finally, paragraph (d) specifies that no substances that are 
known to be, or may be, toxic or harmful to marine mammals may be 
stored or maintained in the marine mammal food storage areas. We are 
proposing to allow cleaning agents to be maintained in these areas if 
they are kept in secured cabinets designed and located to prevent food 
contamination. We also propose to prohibit food, supplements, or 
medications to be used beyond the commonly accepted shelf life or 
dating on the label. The Committee believes that this prohibition would 
help ensure that only wholesome and efficacious food, supplements, and 
medications are used.
    Paragraph (e) of Sec. 3.101 concerns waste disposal and requires, 
among other things, that disposal facilities be provided and operated 
in a manner that minimizes vermin infestation, odors, and disease 
hazards. We are proposing to state instead that disposal facilities 
must be provided and operated in a manner that minimizes odors and the 
risk of vermin infestation and disease hazards. We are proposing this 
rewording because the Committee was concerned that the current language 
could be misunderstood to imply that some degree of vermin infestation 
and disease hazard is acceptable.
    Section 3.101, paragraph (f), concerns washroom facilities and 
requires that facilities such as washrooms, basins, showers, or sinks 
be provided to maintain cleanliness among employees and attendants. The 
Committee agreed to several changes to make this paragraph more 
specific. We are proposing that washroom facilities containing basins, 
sinks, and, as appropriate, showers (not all washrooms require a 
shower) must be provided and must be conveniently located to maintain 
cleanliness among

[[Page 8738]]

employees, attendants, and volunteers. We would also require that such 
facilities be cleaned and sanitized daily.
    The Committee also agreed to add a new paragraph (g) to Sec. 3.101, 
to address the use of enclosure or pool environmental enhancements. 
Proposed paragraph (g) would require that any nonfood item used to 
provide entertainment or stimulation for marine mammals be of 
sufficient size and strength to prevent ingestion or breakage or 
causing injury to marine mammals. These items would also have to be 
able to be cleaned, sanitized and/or replaced effectively.
    As discussed previously in this document, consensus language was 
not developed for the bulk of Sec. 3.104. However, consensus language 
for paragraph (a) of Sec. 3.104 was developed and is included in this 
proposed rule. Paragraph (a) states that primary enclosures must comply 
with the minimum space requirements prescribed by the regulations. (The 
minimum space requirements are contained in Sec. 3.104(b) and (c), 
which are not affected by this rulemaking.) Paragraph (a) further 
requires that primary enclosures be constructed and maintained so that 
marine mammals contained within have sufficient space to make normal 
postural and social adjustments, with adequate freedom of movement, in 
or out of the water, except as provided in Sec. 3.110, ``Veterinary 
care.'' Paragraph (a) also provides that primary enclosures smaller 
than required by the standards may be used for temporary holding 
purposes such as training and transfer of marine mammals, but may not 
be used for permanent housing or for periods longer than specified by 
an attending veterinarian.
    The Committee agreed to make several changes to paragraph (a) to 
add specificity. First, we propose to replace the general reference to 
Sec. 3.110 with a reference to Sec. 3.110(b) (discussed later in this 
document). Paragraph (b) concerns isolation or separation for medical 
treatment and/or medical training. We also propose to provide that 
enclosures smaller than allowed by the standards may be used 
temporarily for nonmedical training, breeding, holding, and transfer 
purposes. However, we propose that, if a marine mammal is to be kept in 
such an enclosure for nonmedical training, breeding, or holding for 
longer than 2 weeks, or for transfer purposes for longer than 1 week, 
the attending veterinarian must provide written justification on a 
weekly basis. We propose to specify that enclosures that do not meet 
the minimum space requirements, including gated side pools abutting 
primary enclosures, may not be used for permanent housing of marine 
mammals. We also propose to specify that rotating animals between 
compliant and noncompliant sized pools or enclosures is not acceptable 
to comply with this paragraph.

Animal Health and Husbandry Standards

    Sections 3.105 through 3.111 address animal health and husbandry. 
The Committee developed consensus language for Secs. 3.105 and 3.107 
through 3.110.
    Section 3.105 contains feeding requirements. Paragraph (a) of 
Sec. 3.105 requires, among other things, that the diet for marine 
mammals be prepared with consideration for age, species, condition, 
size, and type of marine mammal being fed. We propose to state that 
factors such as age, species, condition, and size must be considered 
when preparing the animals' diet. The Committee's intent is that this 
language would clarify that the list is not meant to be all inclusive, 
but that the listed factors must be considered in developing the 
animals' diet. The specification that ``type'' of marine mammal must be 
considered would be removed because the Committee believes that listing 
``species'' is adequate. Paragraph (a) also requires that marine 
mammals be offered food at least once a day, except as directed by 
veterinary treatment or professionally accepted practices. We are 
proposing to require, instead, that marine mammals be offered food at 
least once a day, except as directed by the attending veterinarian.
    The Committee agreed that no changes were necessary to 
Sec. 3.105(b).
    Section 3.105, paragraph (c), requires, among other things, that 
employees or attendants responsible for giving food to the marine 
mammals be able to recognize deviations from a normal state of good 
health in each marine mammal so that the food intake can be adjusted 
accordingly. We propose to add a requirement that inappetence exceeding 
24 hours must be reported immediately to the attending veterinarian. 
Loss of appetite may indicate a medical problem. The Committee believes 
that requiring that loss of appetite exceeding 24 hours be reported to 
the attending veterinarian would help ensure that the marine mammal is 
provided with adequate veterinary care.
    Paragraph (c) further requires that public feeding may only be 
permitted in the presence and under the supervision of a uniformed 
employee or attendant. We are proposing to revise this requirement to 
further stipulate that a sufficient number of knowledgeable, uniformed 
employees or attendants must supervise public feeding. The Committee 
believes that adding the requirement for ``a sufficient number'' of 
employees or attendants during public feeding would ensure that 
adequate supervision is available depending on the number of animals 
being fed. If a large number of animals is involved in the public 
feeding, more than one employee or attendant would be needed. The 
Committee agreed that the term ``knowledgeable'' would indicate that 
the employee or attendant not only has knowledge about the individual 
animals, but knowledge about the harmful effects of feeding marine 
mammals in the wild, and knowledge that such practices are prohibited 
under the Marine Mammal Protection Act. The Committee believes that 
clarification of this intent in the preamble of the proposed rule, 
rather than in the rule itself, would be sufficient. This 
interpretation of the word ``knowledgeable'' is consistent with the 
general welfare and conservation programs embraced by the majority of 
the animal exhibition community.
    We are also proposing to add to paragraph (c) a provision that 
individual feeding records noting the estimated daily food consumption 
must be maintained at the facility for a period of 1 year, and must be 
made available for APHIS inspection. The Committee agreed on 
clarification of this requirement as follows: For marine mammals that 
are individually fed, and not subject to public feeding, the feeding 
records should reflect an accurate account of food intake; for animals 
fed, in part, by the public, and for large, group fed colonies of 
marine mammals where individual rations are not practical or feasible 
to maintain, the daily food consumption should be estimated as 
precisely as possible. However, the Committee agreed that it would not 
be necessary to add this clarification to the proposed regulatory 
language. The Committee agreed that the remaining requirements of 
paragraph (c) would remain unchanged.
    Paragraph (d) of Sec. 3.105 concerns food preparation and handling, 
and requires, among other things, that food be prepared and handled so 
as to minimize bacterial or chemical contamination and to assure the 
wholesomeness and nutritive value of the food. We are proposing to 
remove the portion of that sentence referring to minimizing bacterial 
or chemical contamination because the Committee was concerned that it 
implied that some degree of bacterial or chemical contamination

[[Page 8739]]

would be permissible. The Committee believes that requiring food to be 
prepared and handled in a manner that assures the wholesomeness and 
nutritive value of the food would make it clear that contamination by 
bacteria or chemicals is not acceptable.
    We are also proposing to add several requirements concerning thawed 
food. Paragraph (d) requires that storage of food (including the length 
of time food is stored and the method of storage) and thawing of frozen 
food be done in a manner that minimizes contamination and assures that 
the food retains nutritive value and wholesome quality. We are 
proposing to also require that thawed food be maintained in a manner 
that minimizes contamination and assures that the food retains 
nutritive value and wholesome quality until the time of feeding. The 
Committee believes this new provision would clarify that proper 
maintenance of food extends beyond the thawing process to the time the 
food is fed to the animal. We are also proposing to specify that when 
food is thawed in standing or running water, cold water must be used. 
Use of other water to thaw frozen food may increase the risk of food 
contamination and loss of nutritive value. Finally, paragraph (d) 
requires that food be fed to the marine mammals within 24 hours of 
removal from the freezer for thawing. We propose that, if the food is 
thawed under refrigeration, it must be fed to the marine mammals within 
24 hours of thawing. The Committee agreed to make this change to 
accommodate changes in recognized and acceptable methods of food 
storage and handling, primarily the thawing of food under refrigeration 
(as opposed to thawing under running or standing water). This time 
frame for using food thawed under refrigeration has been approved by 
APHIS for use on an individual facility basis in the past.
    Section 3.107 concerns sanitation. We are proposing several 
amendments to this section that the Committee believes will simplify 
language and clarify issues. Paragraph (a) of Sec. 3.107 concerns 
sanitation in primary enclosures. Paragraph (a)(1) requires that animal 
and food waste in areas other than the primary enclosure pool of water 
be removed at least daily, and more often when necessary, to prevent 
contamination of the marine mammals and to minimize disease hazards. 
Paragraph (a)(2) requires that particulate animal and food waste, 
trash, or debris that enters the primary enclosure pool of water be 
removed as often as necessary to maintain the required water quality 
and to prevent health hazards to the marine mammals. We are proposing 
to revise both paragraphs to refer to minimizing ``health and disease 
hazards.'' We are proposing to use this language to make these 
paragraphs consistent with the rest of the proposed rule. In paragraph 
(a)(1), we would also add that the removal of animal and food waste be 
done ``to provide a clean environment.'' In paragraph (a)(2), we would 
add that the removal of waste, trash, and debris from pools of water 
must be done at least daily, or more often as necessary. This would be 
consistent with the requirement in paragraph (a)(1), and would help 
ensure that the pool water is kept clean.
    Paragraph (a)(3) of Sec. 3.107 requires that the wall and bottom 
surfaces of the primary enclosure pool of water be cleaned as often as 
necessary to maintain proper water quality. We are proposing to add 
that natural organisms (such as algae, coelenterates, or molluscs) that 
do not degrade water quality (according to the standards in 
Sec. 3.106), prevent proper maintenance, or pose a health or disease 
hazard to the animals will not be considered contaminants. The 
Committee believes this addition would accommodate current trends and 
accepted practices of recreating more naturalistic habitats for captive 
marine mammals.
    Paragraph (b) of Sec. 3.107 concerns cleaning of food preparation 
areas and food receptacles. The first sentence reads ``Containers, such 
as buckets, tubs, and tanks, as well as utensils, such as knives and 
cutting boards, or any other equipment which has been used for holding, 
thawing, or preparing food for marine mammals shall be cleaned and 
sanitized after each feeding, if the marine mammals are fed once a day, 
and at least daily if the marine mammals are fed more than once a 
day.'' We are proposing to simplify this sentence to read, ``All 
equipment and utensils used in food preparation shall be cleaned and 
sanitized after each use.'' The Committee believes that the revised 
sentence would retain the intent of the original, while eliminating 
unnecessary complexity. The remaining requirements in paragraph (b) 
would be left unchanged.
    Paragraph (c) of Sec. 3.107 concerns housekeeping. The last 
sentence reads, ``Primary enclosures housing marine mammals shall not 
have any loose objects, sharp projections, and/or edges which may cause 
injury or trauma to the marine mammals contained therein.'' We are 
proposing to change this sentence by removing the commas after ``loose 
objects'' and ``sharp projections'' and adding an ``or'', so that the 
phrase would read ``shall not have any loose objects or sharp 
projections and/or edges which may cause injury.'' The Committee 
believes that this change would clarify the sentence.
    The Committee agreed that no changes are necessary in 
Sec. 3.107(d).
    Section 3.108 contains standards for employees and attendants who 
handle marine mammals. The Committee agreed to clarify and expand the 
requirements for employees and attendants. Currently, Sec. 3.108 
requires that a sufficient number of adequately trained employees or 
attendants responsible to management be utilized to maintain the 
prescribed level of husbandry practices set forth in the regulations. 
We are proposing to add that the employees and attendants must also 
work in concert with the attending veterinarian.
    Section 3.108 further requires that employees and attendants work 
under the supervision of a marine mammal caretaker who has a background 
in marine mammal husbandry and care. We are proposing to revise this 
requirement to state that the marine mammal caretaker must have 
``demonstrable experience'' in marine mammal husbandry and care. A 
marine mammal caretaker could meet this requirement by, for example, 
having on file at the facility a resume with verifiable information 
showing where and when the employee had worked previously and a summary 
of job duties. Similar and equivalent means to verify experience and 
training would be acceptable to demonstrate experience under this 
requirement. In the past, APHIS has received public complaints about 
the lack of training and applicable experience of employees in licensed 
facilities. When an employee's experience has not been demonstrable or 
verifiable, it impedes the effective enforcement of the provisions 
intended to make sure the animals are cared for by trained and 
competent personnel. The Committee believes that the proposed revisions 
would help ensure that personnel are adequately trained and supervised 
to manage the care of the marine mammals.
    To the same end, we are proposing to put the provisions described 
above into a new paragraph (a) in Sec. 3.108, and to add new paragraphs 
(b), (c), and (d) to address employee and attendant training and animal 
training. Paragraph (b) would require that each facility provide and 
document participation in and successful completion of a facility 
training course for its employees. This training course would have to 
include, but would not be limited to, species appropriate husbandry 
techniques, animal handling techniques, and information on proper 
reporting protocols, including recordkeeping and

[[Page 8740]]

notification of veterinary staff when there are medical concerns. New 
paragraph (c) would require that any training of marine mammals be done 
by or under the direct supervision of experienced trainers, and new 
paragraph (d) would require that all trainers and handlers meet 
professionally recognized standards for experience and training. The 
Committee agreed that, for purposes of enforcing this requirement, 
APHIS should use professional organization standards, such as those 
used by the International Marine Animal Trainers Association, as a 
point of reference.
    Section 3.109 concerns separation of animals, and prohibits marine 
mammals that are not compatible from being housed in the same 
enclosure, and prohibits marine mammals from being housed near animals 
that cause them stress or discomfort or interfere with their good 
health. Section 3.109 also requires that captive marine mammals be 
given access to other animals except when they are temporarily 
maintained in isolation for such purposes as medical treatment or 
training and given special attention. The Committee agreed to revise 
these requirements to better define under what conditions usually 
social animals may be kept with or separated from the same or related 
species. We are proposing to retain the provisions that prohibit marine 
mammals that are not compatible from being housed in the same 
enclosure, and that prohibit marine mammals from being housed near 
animals that cause them stress or discomfort or interfere with their 
good health. However, we would add the term ``unreasonable'' in front 
of ``stress or discomfort'' to recognize that any new situation or 
change in conditions can cause a marine mammal to experience some 
stress.
    We are proposing to remove the requirement in Sec. 3.109 that 
captive marine mammals must be given access to other animals except 
when they are temporarily maintained in isolation for such purposes as 
medical treatment or training and given special attention. In its 
place, we are proposing to add that marine mammals that are known to be 
primarily social in the wild must be housed in their primary enclosure 
with at least one compatible animal of the same or biologically related 
species. An exception to this requirement would be made when the 
attending veterinarian, in consultation with the husbandry/training 
staff, determines that such housing is not in the best interests of the 
marine mammal's health or well-being. We also propose to require a 
written plan for animals that are housed separately that includes 
justification for the length of time the animal will be kept separated 
or isolated, the type and frequency of enrichment activities, plans for 
interaction, if appropriate (for example, interactions with trainers/
handlers would be appropriate for cetacean species and some pinnipeds 
but not, necessarily, for polar bears), and provisions for periodic 
review of the plan by the attending veterinarian. The written plan 
would have to be approved by the attending veterinarian and developed 
in consultation with the husbandry/training staff. Finally, we propose 
to require that marine mammals that are held separately for nonmedical 
reasons be in facilities (enclosures) that meet the minimum space 
requirements found in Sec. 3.104. The Committee believes that these 
proposed regulations would minimize separation or isolation of social 
animals except for medical or compatibility considerations, and would 
ensure that there is an ongoing accountability for the isolation or 
separation of a marine mammal.
    Section 3.110 contains standards for veterinary care of marine 
mammals. Proposed Sec. 3.110 would retain most of the current 
requirements, with some minor changes, and would add additional 
standards for veterinary care.
    Proposed paragraph (a) of Sec. 3.110 would require all newly 
acquired marine mammals to be isolated from resident animals at the 
facility. This requirement is in current Sec. 3.110(a). Current 
Sec. 3.110(a) further stipulates that the newly acquired marine mammals 
be isolated until they can reasonably be determined to be in good 
health. In accordance with the Committee's agreement, we propose to 
require instead that newly acquired marine mammals with a known medical 
history be isolated unless or until the attending veterinarian can 
reasonably determine that they are in good health. Marine mammals 
without a known medical history would have to be isolated until the 
attending veterinarian determines that they are in good health. This 
revision is intended to mean that newly acquired marine mammals with a 
known medical history might not have to be isolated at all if the 
attending veterinarian determines they are in good health. Paragraph 
(a) also requires that any communicable disease condition in a newly 
acquired marine mammal be remedied before the new animal is placed with 
resident marine mammals. We propose to add that this requirement will 
not apply if the attending veterinarian judges that the potential 
benefits of a resident animal as a companion to the newly acquired 
animal outweigh the risks to the resident animal.
    Proposed paragraph (b) of Sec. 3.110 would, in part, contain a 
revised version of the provisions currently found in paragraph (c) of 
Sec. 3.110. Paragraph (c) requires that temporary holding facilities 
with adequately and properly designed pools, tanks, restraining 
devices, or primary enclosures, be provided for isolation, medication, 
treatment, and other purposes, such as transfer and training of marine 
mammals. To simplify this requirement, proposed Sec. 3.110(b) would 
state that holding facilities must be in place and available to meet 
the needs for isolation, separation, medical treatment, and medical 
training of the marine mammals. Paragraph (c) also currently provides 
that the pools, tanks, and primary enclosures may be less than minimum 
size in both lateral dimensions and depth when used in special 
situations when prescribed by the professional staff for temporary use. 
To simplify and clarify this requirement, as well, proposed paragraph 
(b) would state that holding facilities used to house isolated or 
separated marine mammals for nonmedical purposes would have to meet the 
space requirements of Sec. 3.104; holding facilities used only for 
medical treatment and medical training would not have to meet the 
minimum space requirements of Sec. 3.104.
    The remainder of proposed Sec. 3.110(b) would contain new 
requirements agreed on by the Committee. We are proposing to require 
that, if an animal is to be housed for longer than 2 weeks for medical 
or medical training purposes in a facility that does not meet the 
minimum space requirements in Sec. 3.104, it must be noted and 
justified on the animal's medical records by the attending veterinarian 
on a weekly basis. We are also proposing in paragraph (b) provisions 
for veterinary care of marine mammals in natural lagoon and coastal 
enclosures because water circulation cannot be controlled or isolated 
in such facilities. In natural lagoon and coastal enclosures, newly 
acquired marine mammals would have to be separated from resident 
animals using separate enclosures within the facility, located to 
prevent direct contact of newly acquired animals with resident animals 
and to minimize the risk of airborne or waterborne contamination 
between newly acquired animals and resident animals.
    Currently, paragraph (b) of Sec. 3.110 also contains provisions 
concerning cleaning of primary enclosures containing a marine mammal 
with an infectious or contagious disease. We are proposing to put 
provisions for cleaning in paragraph (c) of Sec. 3.110. The

[[Page 8741]]

proposed provisions would be similar to the current provisions, except 
that we would refer to cleaning of holding facilities used for medical 
purposes, instead of to primary enclosures. The Committee's intent is 
to clarify that holding facilities may include primary enclosures, as 
well as other types of facilities used for medical purposes. We are 
proposing to require that any holding facility that is used for medical 
purposes and that has contained a marine mammal with an infectious or 
contagious disease be cleaned and sanitized in the manner prescribed by 
the attending veterinarian. No healthy animals could be introduced into 
the holding facility prior to such cleaning and/or sanitizing, to 
minimize the risk of spreading disease. Any marine mammal exposed to a 
contagious animal would have to be evaluated by the attending 
veterinarian. The attending veterinarian would determine if the exposed 
animal needs to be monitored and/or isolated, and would determine the 
appropriate time period for monitoring or isolation.
    In proposed Sec. 3.110, paragraphs (d), (e), and (f) would add new 
requirements for veterinary care beyond what is currently required. The 
new requirements are intended to provide more specific standards 
concerning what constitutes adequate veterinary care.
    Proposed Sec. 3.110, paragraph (d), would require that individual 
medical records be kept for each animal and be made available to APHIS 
inspectors. These records would have to indicate the animal's 
identification/name and a physical description of the animal, including 
any identifying markings, scars, etc. The age and sex of the animal 
must also be recorded. The Committee agreed that, in enforcing this 
requirement, records may include the actual age of the animal or an 
estimated age, if the actual age is not known. The individual medical 
record would also have to include the results of all physical 
examinations, including, but not limited to, length, weight, physical 
examination results by body system, identification of all medical and 
physical problems and proposed plan(s) of action (i.e. the treatment 
protocol), all diagnostic test results, and documentation of all 
treatment.
    Proposed Sec. 3.110, paragraph (e), would require that a copy of 
the individual animal medical record accompany any marine mammal when 
it is transferred to another facility. This would include transfers to 
all contract (lease) and satellite facilities. The intent of this 
requirement is to ensure that a copy or the original of the animal's 
individual medical record would always be available to animal care 
personnel, including the attending veterinarian at the receiving 
facility, and to APHIS inspectors.
    Proposed Sec. 3.110, paragraph (f), would require that all marine 
mammals be visually examined by the attending veterinarian at least 
twice a year, and physically (hands on) examined under the supervision 
of the attending veterinarian whenever the attending veterinarian 
determines that physical examination is necessary. All cetaceans and 
sirenians (whales, dolphins, and manatees) would have to be physically 
examined by the attending veterinarian at least once a year. The annual 
physical examination for cetaceans and sirenians would have to include, 
but not be limited to, a hands on physical examination, hematology and 
blood chemistry analysis, and other diagnostic tests as determined by 
the attending veterinarian. APHIS could grant an exception from the 
requirement for a yearly physical examination of cetaceans and 
sirenians based on considerations related to the health and safety of 
the individual animal. It was agreed by the Committee that use of 
trained husbandry behaviors should be encouraged, to minimize the 
stress of the required examinations. However, the Committee determined 
that this would not be specified in the regulations. We are proposing 
to leave the frequency of physical examinations for marine mammals 
other than cetaceans and sirenians to the discretion of the attending 
veterinarian. The Committee particularly felt that hands on physical 
examinations of animals in large, untrained pinniped colonies may not 
be warranted unless the attending veterinarian believes a particular 
animal requires such an examination. This is because examination of an 
untrained pinniped colony may cause undue stress to the colony or 
individual animals and may present a significant risk of injury to 
personnel.
    In proposed Sec. 3.110, paragraph (g) would contain requirements 
for necropsy. The proposed requirements are essentially the same as 
those in current Sec. 3.110(d), with some additional provisions. 
Currently, Sec. 3.110(d) requires that a complete necropsy be conducted 
by or under the supervision of a veterinarian on all marine mammals 
that die in captivity. We would retain this requirement in proposed 
paragraph (g)(1), but would further specify that the necropsy must 
include histopathology samples, microbiological cultures, and other 
testing as appropriate, and that the necropsy must be conducted by or 
under the supervision of the attending veterinarian. Current paragraph 
(d) further requires that the veterinarian prepare a necropsy report 
listing all pathological lesions observed and giving the apparent cause 
of death. Proposed paragraph (g)(1) would require both a preliminary 
report and a final report. The preliminary necropsy report would have 
to include a list all pathological lesions observed. The final report 
would have to include all gross and histopathological findings, lab 
test results, and a pathological diagnosis (this may or may not be the 
immediate cause of death).
    Current paragraph (d) also requires that the management of the 
facility at which the marine mammal died must maintain necropsy records 
for a period of 3 years and must make them available for APHIS 
inspection when requested. The Committee discussed whether or not to 
revise the regulations to require that necropsy records be submitted to 
and maintained by APHIS, but the Committee did not reach agreement on 
this issue. APHIS has encountered no significant problems investigating 
marine mammal deaths, when indicated, using necropsy records kept at 
the facility. Further, we do not wish to place an additional reporting 
burden on licensees and registrants concerning these records. 
Therefore, we are including the requirement from paragraph (d), with 
one change, in proposed paragraph (g)(2), despite the fact that 
consensus was not reached on the requirement. Because proposed 
paragraph (g)(2) is nonconsensus language, it is open for all public 
comment, including comments from Committee members.
    Proposed paragraph (g)(2) would require that necropsy reports be 
maintained at the facility for a period of 3 years and made available 
for APHIS inspection. We intend this to mean at the home facility of 
the marine mammal. We are proposing not to retain the requirement that 
records be kept at the facility where the marine mammal died, in order 
to allow for the records of leased or borrowed animals to be maintained 
at the home institution. Some facilities maintain marine mammals only 
on a seasonal basis, and are therefore not open for inspection for 
significant parts of the year. While we would still expect records to 
be available at the site of demise for investigative purposes following 
an animal's death, once an investigation (if warranted) is completed, 
the records could be maintained at the home facility of the animal.

[[Page 8742]]

Transportation Standards

    Sections 3.112 through 3.118 contain standards for transportation 
of marine mammals. Consensus language was attained for each of these 
sections. One of the changes we are proposing appears throughout 
Secs. 3.112 through 3.118. These sections frequently use the term 
``primary enclosure'' to mean the primary enclosure used during 
transport of a marine mammal. However, the term ``primary enclosure'' 
is also used throughout the regulations to mean an animal's permanent 
housing structure, such as the pool at the facility where the animal is 
kept. To avoid confusion, we are proposing to replace the term 
``primary enclosure'' with the term ``primary transport enclosure'' 
throughout Secs. 3.112 through 3.118, wherever we believe such change 
is necessary for clarity. This change would appear in Sec. 3.112(b), 
Sec. 3.113(h), 
Sec. 3.114(c), Sec. 3.117, and Sec. 3.118(b). In other places, the 
regulations specify ``primary enclosure used to transport marine 
mammals.'' We would not make any changes in these places because we 
believe the intent is clear.
    Section 3.112 concerns consignment of marine mammals to carriers 
and intermediate handlers. The Committee agreed to retain almost all of 
current Sec. 3.112, with a few changes and additions.
    Paragraph (a) of Sec. 3.112 currently states that carriers and 
intermediate handlers may not accept any marine mammal for transport 
more than 4 hours prior to the scheduled departure of the primary 
conveyance on which the animal is to be transported, with an exception 
made to 6 hours if agreed on by both the carrier or intermediate 
handler and the person or group presenting the animal for transport. We 
are proposing to also prohibit a carrier or intermediate handler from 
accepting any marine mammal for transport if the animal is not 
accompanied by a health certificate signed by the attending 
veterinarian and stating that the animal was examined within 10 days 
prior to transport and was found to be in acceptable health for 
transport. A requirement for a pre-transport veterinary examination and 
health certificate already exists for dogs, cats, and nonhuman primates 
(see 9 CFR 2.38 and 2.78). The Committee believes that adding a similar 
requirement for marine mammals would help ensure that the health of 
marine mammals is assessed prior to transport.
    Paragraph (b) of Sec. 3.112 states, among other things, that any 
carrier or intermediate handler may accept a marine mammal for 
transport if the consignor provides a certificate stating that the 
primary transport enclosure complies with Sec. 3.113 of the regulations 
(discussed later in this document). The certificate must include the 
name and address of the consignor, the number of animals in the 
enclosure, a statement certifying that the enclosure complies with the 
standards in 9 CFR part 3, and the signature of the consignor. We are 
proposing to add that the certificate must also include the age and sex 
of each animal in the primary transport enclosure. The Committee agreed 
that, in enforcing this requirement, APHIS may accept on the 
certificate the actual age of the animal or an estimated age, if the 
actual age is not known.
    Section 3.112(c) concerns temperature. It states that carriers or 
intermediate handlers whose facilities fail to meet the minimum 
temperature allowed by the regulations may accept a marine mammal for 
transport if the marine mammal is accompanied by a certificate executed 
by an accredited veterinarian and stating that the marine mammal is 
acclimated to air temperatures lower than those prescribed in 
Secs. 3.117 and 3.118 of the regulations. We are proposing first to 
clarify the temperature requirement in this paragraph by stating the 
acceptable temperature range required by Secs. 3.117 and 3.118 (7.2 
deg.C-23.9  deg.C, or 45  deg.F-75  deg.F) and by stating that the air 
temperature must be within this range. We also propose to amend 
paragraph (c) to state that carriers or handlers whose facilities fail 
to maintain a temperature within that range may accept a marine mammal 
for transport if the marine mammal is accompanied by a certificate 
stating that the marine mammal is acclimated to an air temperature 
range specified on the certificate that is either lower or higher than 
the prescribed range. Including the air temperature to which the animal 
is acclimated would provide additional guidance to carriers and 
intermediate handlers in determining if the animal should be accepted 
for shipment. We are also proposing to require that the certificate be 
executed by the attending veterinarian instead of by an accredited 
veterinarian. We are proposing this change because the attending 
veterinarian responsible for the marine mammal would know better to 
what temperature the animal is acclimated than would an accredited 
veterinarian who is not usually responsible for the animal's care.
    In addition to certifying acclimation to a certain air temperature, 
paragraph (c) requires that the certificate include the name and 
address of the consignor and the number of animals in the shipment. We 
are proposing to additionally require that the certificate include the 
age and sex of each marine mammal in the shipment. The Committee agreed 
that, in enforcing this requirement, the certificate may include the 
actual age of the animal or an estimated age, if the actual age is not 
known.
    Section 3.113 contains standards for construction and design of 
primary transport enclosures for marine mammals. The Committee's 
proposal retains almost all of the current provisions in Sec. 3.113, 
with some revisions and additions.
    Paragraph (a) contains specific requirements for primary transport 
enclosures used to transport any marine mammal to help ensure the 
animals' safety and comfort.
    One of the requirements, contained in paragraph (a)(4), is that the 
primary transport enclosure have interiors that are free from any 
protrusions that could be injurious to the marine mammals. We are 
proposing to add that the interior must also be free from any hazardous 
openings that could be injurious to the marine mammals. This 
requirement appears necessary to prevent injuries caused by marine 
mammals' flippers, heads, or feet being caught in openings from which 
they can not readily free themselves.
    Paragraph (a)(7) requires that primary transport enclosures have 
openings located in a manner that makes them easily accessible at all 
times for emergency removal of the marine mammal inside. We are 
proposing to add that the openings must also allow potential treatment 
of the marine mammal. The Committee believes this requirement is 
necessary because treatment during transport (emergency or otherwise) 
would not always require, and is often best performed without, removal 
of the marine mammal from the enclosure.
    Paragraph (a)(8) requires that primary transport enclosures have 
ventilation openings located on all four sides of the enclosure that 
are not less than 16 percent of the total surface area of each side. We 
are proposing to require that the ventilation openings be not less than 
20 percent of the total surface area on each side. The Committee 
determined that this was a reasonable requirement that would ensure 
adequate ventilation without interfering with the strength and 
integrity of the transport enclosure. The Committee also believes that 
20 percent is an easier percentage to work with than 16 percent.
    Paragraph (a)(9) requires that primary transport enclosures have 
projecting rims or other devices placed on the ends

[[Page 8743]]

and sides of enclosures with ventilation openings to provide a minimum 
air circulation space of 1.9 centimeters (.75 inches) between the 
enclosure and any adjacent cargo or the conveyance wall. We are 
proposing to require the minimum air circulation space be 7.6 
centimeters (3 inches). The Committee believes this additional space is 
necessary to ensure adequate airflow around the enclosure.
    We would redesignate current paragraph (a)(10) as (a)(11), without 
changing its content. We propose to add a new paragraph (a)(10) in its 
place to state that primary transport enclosures must be constructed so 
as to provide air circulation space sufficient to maintain the 
temperature limits required by the regulations (in subpart E). 
Temperature limits required by the regulations would include 
temperature limits found within Secs. 3.112 through 3.118, as well as 
any temperature limits for specific species that may be set in 
Secs. 3.102 and 3.103 in a future rulemaking.
    Paragraph (b) of Sec. 3.113 concerns devices used for supporting or 
restraining marine mammals during transport. The Committee agreed that 
no substantive changes were necessary in this paragraph. The Committee 
did propose an editorial change in paragraph (b)(1), to remove the 
phrase ``during transportation.'' This phrase was considered redundant, 
since it is already clear that the standards in this section apply to 
transportation.
    Paragraph (c) of Sec. 3.113 contains standards for the size of 
primary transport enclosures, specific for different types of marine 
mammals. We are proposing to restructure this paragraph for the purpose 
of simplification. Paragraph (c)(1) concerns enclosures for polar bears 
and sea otters, and paragraph (c)(2) concerns enclosures for pinnipeds 
(seals, sea lions, and walruses). We would add pinnipeds to paragraph 
(c)(1), without changing the space requirements and would remove 
paragraph (c)(2). Current paragraph (c)(3) would be redesignated as 
paragraph (c)(2).
    Current paragraph (c)(1) requires that enclosures for polar bears 
and sea otters provide sufficient space for the animals to turn about 
freely in a stance whereby all four feet are on the floor. Because we 
are adding pinnipeds to this paragraph, we would also add a reference 
to all flippers being on the floor. Current paragraph (c)(3) (proposed 
to be redesignated as paragraph (c)(2)) states that animals may be 
restricted in their movement ``according to professionally acceptable 
standards. . . .'' We propose to refer instead to ``professionally 
accepted standards.''
    Paragraph (d) of Sec. 3.113 concerns the compatibility of marine 
mammals transported together. One of the requirements in paragraph (d) 
is that socially dependent animals (for example, siblings, dams, or 
other members of a family group) must be allowed visual and olfactory 
contact. We are proposing to require that visual and olfactory contact 
be allowed whenever reasonable. The Committee believes that this 
proposed revision is necessary because there are occasions when, due to 
transportation circumstances and the animals involved, visual or 
olfactory contact is not possible. For example, currently accepted 
industry standards for transporting cetaceans involves transportation 
in individual enclosures with solid sides. These enclosures invariably 
have solid sides even when the animal is in a sling. Although there may 
be auditory contact with other group members being transported at the 
same time, visual contact is not practical.
    Section 3.113, paragraph (e), contains provisions for the 
construction of primary transport enclosure floors. We are proposing to 
retain the first requirement in paragraph (e) that primary transport 
enclosures have solid bottoms to prevent leakage in shipment and, if 
the enclosure has been previously used, that it be cleaned and 
sanitized in a manner prescribed in Sec. 3.107 of the regulations. The 
remainder of paragraph (e) requires that primary transport enclosures 
contain clean litter, unless the animals are on wire or other nonsolid 
floors. We are proposing to replace these provisions with a requirement 
that, within the primary transport enclosure, marine mammals be 
maintained on sturdy, rigid, solid floors with adequate drainage. The 
use of litter and some wire flooring can be potentially dangerous for 
the animals if litter is ingested or body parts are caught in or 
abraded on the wire flooring. The Committee believes the revision is 
necessary to reflect currently accepted practices regarding the 
flooring of transport enclosures for marine mammals, and to provide the 
best flooring for the safe transport of the marine mammals.
    Paragraph (f) of Sec. 3.113 requires primary transport enclosures 
to be marked with the phrase ``Live Animal'' or ``Wild Animal'' 
(whichever is appropriate), and gives specifications as to how those 
markings must appear. One of the specifications is that the enclosure 
must be marked on top and on one or more sides. However, some primary 
transport enclosures are open, and do not have tops (such as those used 
for cetaceans or sirenians). Other primary transport enclosures do not 
have solid areas on more than one side. To accommodate these 
situations, we are proposing to revise this requirement to state that 
the enclosure must be marked with the appropriate phrase ``on top (when 
present) and on at least one side, or on all sides whenever possible.'' 
We are also proposing to remove the phrase ``whichever is appropriate'' 
after ``Live Animal'' or ``Wild Animal'' because the Committee believes 
it is unnecessary.
    Paragraph (g) of Sec. 3.113 requires that documents accompanying 
the shipment of marine mammals be attached to the outside of a primary 
transport enclosure that is part of the shipment. We are proposing to 
add, as an alternative, that the documents may be in the possession of 
the shipping attendant. This alternative would allow the documents to 
be kept away from water that is in the enclosures or that is used to 
spray the animals.
    The Committee proposed no changes to Sec. 3.113, paragraph (h), 
except to change ``primary enclosure'' to ``primary transport 
enclosure'', for the reasons given previously in this document.
    Section 3.114 contains standards for primary conveyances (motor 
vehicle, rail, air, and marine) used to transport marine mammals. 
Paragraph (a) provides that the animal cargo space of any primary 
conveyance used to transport live marine mammals must be constructed in 
a manner that will protect the health and ensure the safety and comfort 
of the marine mammals being transported. Historically, most problems 
with discomfort, stress, and injuries to marine mammals during 
transportation have been caused by excessive heat or cold. To help 
prevent such problems, we are proposing to add a provision to paragraph 
(a) that would require primary conveyances to be sufficiently 
temperature controlled to provide an appropriate environmental 
temperature for the species of marine mammal being transported, to 
ensure the safety and comfort of the marine mammal, or to employ other 
safeguards (for example, cold water, ice, or fans) to maintain the 
animal at an appropriate temperature.
    The Committee did not propose any revisions to Sec. 3.114(b).
    In Sec. 3.114, paragraph (c), we are proposing to make some 
editorial changes to make the regulations easier to read and 
understand, but we are proposing no substantive changes.
    The Committee did not propose any changes to paragraphs (d), (e), 
or (f) of Sec. 3.114.

[[Page 8744]]

    We are proposing to add a new paragraph (g) to Sec. 3.114 to 
address lighting in the requirements for primary conveyances. The 
Committee believes that adequate lighting is essential to provide 
adequate care for the animals during transport. Proposed paragraph (g) 
would require that adequate lighting be made available so that 
attendants may properly inspect the marine mammals in their care at any 
time. If the carrier cannot provide such lighting, the shipper 
(consignor) must arrange for the lighting.
    Section 3.115 contains requirements for food and drink availability 
during transport. Currently, paragraph (a) requires that those marine 
mammals that require drinking water be offered potable water within 4 
hours prior to being transported in commerce or offered for 
transportation in commerce. We propose to change this language to state 
that those marine mammals that require drinking water be offered 
potable water within 4 hours of being placed in the primary transport 
enclosure for transport in commerce. The Committee believes this change 
is necessary because marine mammals are sometimes placed in a primary 
transport enclosure and then transported to the primary conveyance for 
transport in commerce. In these cases, the marine mammal may be in the 
primary transport enclosure several hours before transport in commerce 
begins. The Committee intends that this change will ensure that the 
marine mammal is given water within a reasonable time prior to being 
placed in the primary transport enclosure.
    Paragraph (b) of Sec. 3.115 requires that marine mammals may not be 
transported for more than 36 hours without being offered food; when an 
employee or attendant is required to accompany the shipment, the marine 
mammals must be fed during transit when necessary to provide for their 
good health and well-being. The Committee agreed that not all marine 
mammal species require or benefit from food during transportation. To 
reflect this, we are proposing to require instead that marine mammals 
being transported in commerce be offered food as often as necessary and 
appropriate for the species involved or as determined by the attending 
veterinarian. The attending veterinarian would take into account the 
species of marine mammal, the condition of the individual animal, and 
the length of transport to determine if food needs to be offered.
    Section 3.116 contains requirements for care of marine mammals in 
transit. The Committee chose to extensively revise this section to 
address the specific needs and considerations for the transport of 
marine mammals. While the specific proposed regulations are discussed 
below, a key overriding component of the proposed language is that all 
marine mammals in transit must be accompanied by a sufficient number of 
knowledgeable and experienced escorts. The proposed regulations may 
specify that the escort be a licensed veterinarian, an employee, or an 
attendant of the shipper or receiver. This additional consideration 
appears throughout proposed Sec. 3.116.
    Section 3.116(a) requires that an employee or attendant of the 
shipper or receiver knowledgeable in the area of marine mammal care 
accompany cetaceans, sirenians, pinnipeds, and sea otters during 
transport to provide for their good health and well-being, to observe 
the marine mammals and determine whether they need veterinary care, and 
to obtain any needed veterinary care as soon as possible. We are 
proposing to retain this requirement, but with a few changes. We would 
add ``licensed veterinarian'' to the list of persons who may accompany 
the marine mammal during transport. We would require that, in addition 
to being knowledgeable in the area of marine mammal care, the licensed 
veterinarian, employee, or attendant must also be experienced in the 
area of marine mammal care and knowledgeable and experienced in the 
area of marine mammal transport. We would also replace the phrase 
``cetaceans, sirenians, pinnipeds, and sea otters'' with ``all marine 
mammals,'' which would include polar bears. We also propose to require 
that any transport of greater than 2 hours duration have a transport 
plan approved by the attending veterinarian. Among other things, this 
plan would have to specify whether a veterinarian must accompany the 
shipment. We also propose that, if the attending veterinarian does not 
accompany the shipment, arrangements must be made to stay in contact 
with him/her during transport, in accordance with 9 CFR 2.40(b)(3). 
Section 2.40 of the regulations contains requirements for adequate 
veterinary care of any animal covered under the Animal Welfare Act. 
Section 2.40(b)(3) requires, among other things, that there be daily 
observations of all animals to assess their health and well-being, and 
that there be a mechanism of direct and frequent communication so that 
timely and accurate information on problems of animal health, behavior, 
and well-being can be conveyed to the attending veterinarian.
    Currently, specific requirements concerning care of cetaceans and 
sirenians in transit appear in paragraph (b) of Sec. 3.116; specific 
requirements concerning care of sea otters in transit appear in 
paragraph (c) of Sec. 3.116. In proposed Sec. 3.116, requirements 
concerning these animals would appear in paragraphs (d) and (f), 
respectively. Proposed paragraphs (b) and (c) would contain new 
requirements. Paragraph (b) would contain requirements for handling the 
transportation of a marine mammal under circumstances where additional 
care or planning may be needed. A pregnant marine mammal in the last 
half of pregnancy, a dependent unweaned young animal, a nursing mother 
with young, or an animal with a medical condition requiring veterinary 
care that would be compromised by transport could not be transported in 
commerce unless the transport is determined to be appropriate by the 
attending veterinarian. Earlier in this document, we discussed the 
proposal in Sec. 3.112 to require that marine mammals presented for 
transport be accompanied by a health certificate, signed by the 
attending veterinarian, certifying that the animal is in acceptable 
health for transport. In conjunction with this, we are proposing in 
Sec. 3.116(b) that the attending veterinarian must note the existence 
of any of the above conditions on the health certificate, and determine 
whether a veterinarian should accompany the animal during transport.
    Proposed paragraph (c) of Sec. 3.116 would require the carrier to 
inform the crew of the primary conveyance that a marine mammal is on 
board the craft, and inform the persons accompanying the marine mammal 
of any unforseen delays as soon as they become known. The carrier would 
also be required to accommodate requests by the shipper or his agent to 
provide access to the animal or take other actions necessary for the 
welfare of the animal during any delay, unless the carrier is precluded 
from doing so because of safety considerations.
    As stated previously, proposed paragraph (d) of Sec. 3.116 would 
contain specific requirements for the care of cetaceans and sirenians 
during transport. Most of the requirements we are including in proposed 
paragraph (d) currently appear in Sec. 3.116(b), and would simply be 
moved to proposed paragraph (d). Currently, Sec. 3.116(b) requires that 
an employee or attendant of the shipper or receiver of cetaceans or 
sirenians being transported in commerce provide certain care to ensure 
the comfort and health of the animal during transport. We would change 
this requirement in proposed paragraph (d) to state that ``a sufficient 
number of employees or attendants'' of the shipper

[[Page 8745]]

or receiver must provide care to the animals during transport. Current 
paragraph (b) then lists four specific things that must be done by the 
employees or attendants to care for the marine mammals during 
transport. These would all be included in proposed paragraph (d), and 
are as follows:
     Keeping the skin moist or preventing the drying of the 
skin by methods such as intermittent spraying of water or application 
of a nontoxic emollient. (We would remove the reference to lanolin as 
an example of a nontoxic emollient, as it is not currently used often, 
and there are more effective emollients available.);
     Assuring that the pectoral flippers are allowed freedom of 
movement at all times;
     Making adjustments in the position of such marine mammals 
when necessary to prevent necrosis of the skin at weight pressure 
points; and
     Calming the marine mammals to avoid struggling, thrashing, 
and other unnecessary activity which may cause overheating or physical 
trauma.
    We also propose to add a fifth requirement, that the employees or 
attendants must keep the marine mammals cooled or warmed sufficiently 
to prevent overheating, hypothermia, or temperature related stress. 
Finally, current paragraph (b) states that no cetacean or sirenian in 
need of veterinary care may be transported in commerce unless the 
transport is for the purpose of obtaining such care. The Committee 
believes it is unnecessary to include this requirement in proposed 
paragraph (d) because proposed Sec. 3.116(b) (discussed previously in 
this document) would prohibit any marine mammal with a medical 
condition requiring veterinary care from being transported unless the 
transport is determined to be appropriate by the attending 
veterinarian.
    Currently, provisions for transport of polar bears are contained in 
Sec. 3.116(d). This paragraph provides that polar bears need not be 
accompanied by an employee or attendant unless the period of 
transportation will exceed 24 hours in duration, and requires that the 
carrier inspect unaccompanied polar bears at specific intervals during 
transport to ascertain the need for any veterinary care. There are no 
specific requirements in Sec. 3.116 for the transport of pinnipeds. We 
are proposing to place new requirements for the transport of polar 
bears and pinnipeds in paragraph (e) of Sec. 3.116. We do not propose 
to include the current requirements discussed above concerning polar 
bears in proposed paragraph (e) because the Committee believes they are 
inadequate to ensure the health and well-being of polar bears being 
transported.
    Proposed paragraph (e) of Sec. 3.116 would require that a 
sufficient number of employees or attendants of the shipper or receiver 
of pinnipeds or polar bears being transported in commerce provide for 
the pinnipeds and polar bears during transport by keeping the animals 
cooled and/or warmed sufficiently to prevent overheating, hypothermia, 
or temperature related stress, and by calming the animals to avoid 
struggling, thrashing, and other unnecessary activity that may cause 
overheating or physical trauma.
    As discussed previously, provisions for the care of sea otters 
during transport are currently found in Sec. 3.116(c). Paragraph (c) 
requires that not less than one-half of the floor area in a primary 
transport enclosure be leakproof and contain sufficient crushed ice or 
ice water to provide each sea otter with moisture necessary to prevent 
its hair coat from drying and minimize soiling of the hair coat with 
urine and fecal material. We are proposing to remove these requirements 
for sea otters from paragraph (c), and place new requirements for sea 
otters in paragraph (f) of Sec. 3.116. Proposed paragraph (f) would 
require that sea otters be transported in primary enclosures that 
contain false floors through which water and waste can freely pass to 
keep the interior of the transport unit free from waste materials. The 
Committee believes this change is necessary because contact with waste 
materials can rapidly foul a sea otter's coat and cause serious 
problems for the animal. Requiring a false floor would help eliminate 
such problems. Also, paragraph (f) would require that moisture be 
provided by water sprayers or ice during transport. This would allow 
employees and attendants options for maintaining the availability of 
sufficient water for grooming by the sea otters during transport.
    Currently, paragraph (e) of Sec. 3.116 states that wild or 
otherwise dangerous marine mammals may not be taken from their primary 
transport enclosures except under extreme emergency conditions and then 
only by their trainer or other person who is capable of handling the 
animals safely. We are proposing to revise this requirement to state 
that marine mammals may be removed from their primary transport 
enclosures only by attendants or other persons who are capable of 
handling the animals safely. The Committee believes this revision is 
necessary to make the requirement apply to all marine mammals, not just 
wild or dangerous marine mammals, and to make it apply to removal of 
the animals from their primary transport enclosure for any reason. This 
requirement would appear in a new paragraph (g) in Sec. 3.116.
    Section 3.117 of the regulations contains requirements for terminal 
facilities. This proposal would retain most of the requirements in 
Sec. 3.117, with some changes. We would retain the current requirement 
from Sec. 3.117 that carriers and intermediate handlers may not 
commingle marine mammal shipments with inanimate cargo. Section 3.117 
also states that all animal holding areas of a terminal facility of any 
carrier or intermediate handler in which marine mammal shipments are 
maintained must be cleaned and sanitized in a manner prescribed in 
Sec. 3.107 often enough to prevent an accumulation of debris or 
excreta, to minimize vermin infestation, and to prevent a disease 
hazard. We would amend this provisions to remove the phrase ``often 
enough to prevent an accumulation of debris * * * and to prevent a 
disease hazard'' and replace this phrase with ``to minimize health and 
disease hazards.'' The Committee believes this revision would clarify 
that the purpose of maintaining clean and sanitary conditions in a 
terminal facility is to ensure the health of the animals held there. An 
accumulation of excreta or debris or an infestation of vermin would be 
a threat to the animals' health, and would, therefore, not be 
acceptable. We would retain without change the next requirement in 
Sec. 3.117 that an effective program for the control of insects, 
ectoparasites, and avian and mammalian pests be established and 
maintained for all animal holding areas.
    Section 3.117 next states that any animal holding area containing 
marine mammals must be provided with fresh air by means of windows, 
doors, vents, or air conditioning and may be ventilated or have air 
circulated by means of fans, blowers, or an air conditioning system so 
as to minimize drafts, odors, and moisture condensation. We propose to 
state instead that animal holding areas must be ``ventilated with fresh 
air or air circulated by means of fans, blowers, or an air conditioning 
system'' to minimize drafts, odors, and moisture condensation. The 
Committee believes this wording is easier to understand and would make 
the intent of the requirement more clear.
    Finally, current Sec. 3.117 addresses air temperature and auxiliary 
ventilation. Auxiliary ventilation, such as exhaust fans and vents, or 
fans, blowers, or air conditioning, must be used for any animal holding 
area containing marine

[[Page 8746]]

mammals when the air temperature within the animal holding area is 23.9 
 deg.C (75  deg.F) or higher. The air temperature around any marine 
mammal in any animal holding area must not be allowed to fall below 7.2 
 deg.C (45  deg.F). The air temperature around any polar bear must not 
be allowed to exceed 29.5  deg.C (85  deg.F) at any time and no polar 
bear may be subjected to surrounding air temperatures that exceed 23.9 
deg.C (75  deg.F) for more than 4 hours at any time. The Committee 
agreed to retain these requirements in proposed Sec. 3.117.
    Section 3.117 also describes how compliance with the air 
temperature requirements described above must be ascertained, and 
states that the air temperature around any marine mammal must be 
measured and read outside the primary enclosure containing the animal 
at a distance not to exceed 0.91 meters (3 feet) from any one of the 
external walls of the primary enclosure and on a level parallel to the 
bottom of the primary enclosure at a point that approximates half the 
distance between the top and bottom of the enclosure. We would retain 
this requirement, as well, but would add that the air temperature must 
be ascertained in this manner upon arrival of the shipment in the 
holding area by the attendant, carrier, or intermediate handler.
    Section 3.118 contains requirements for handling of marine mammals 
by carriers and intermediate handlers in holding areas of terminal 
facilities and when transporting marine mammals between holding areas 
and primary conveyances. The introductory text of paragraph (a) 
requires carriers and intermediate handlers to move marine mammals from 
the animal holding area of the terminal facility to the primary 
conveyance and from the primary conveyance to the animal holding area 
of the terminal facility as expeditiously as possible. We would retain 
this requirement in proposed Sec. 3.118 and designate it as paragraph 
(a)(1).
    In Sec. 3.118, paragraph (a)(1) is titled ``Shelter from 
sunlight.'' We propose to redesignate this paragraph as paragraph 
(a)(2) and to revise the heading to read ``Shelter from overheating and 
direct sunlight.'' Currently, this paragraph states that when sunlight 
is likely to cause overheating or discomfort, sufficient shade shall be 
provided to protect the marine mammals from the direct rays of the sun. 
It also provides that marine mammals may not be subjected to 
surrounding air temperatures exceeding 29.5  deg.C (85  deg.F) for more 
than 45 minutes. We propose to require that shade must also be provided 
when sunlight is likely to cause sunburn. We are also proposing to 
lower the maximum surrounding air temperature to 23.9  deg.C (75 
deg.F), but would allow the temperature to exceed that if the marine 
mammal is accompanied by an acclimation certificate in accordance with 
Sec. 3.112.
    Paragraph (a)(1) currently requires that the surrounding air 
temperature discussed above be measured and read in the manner 
prescribed in Sec. 3.117 (concerning terminal facilities), for a period 
of more than 45 minutes. Section 3.117 concerns the environmental 
ambient temperature in a terminal facility holding area. The Committee 
believes that, to ensure that an animal is not exposed to overheating 
from direct sunlight, monitoring of temperature should be for 
conditions in the transport enclosure itself. For example, the 
surrounding air temperature may be acceptable, but if the transport 
enclosure is exposed to direct sunlight, the interior temperature of 
the enclosure may be too high for the animal's well-being. Therefore, 
we propose to require that the air temperature surrounding the primary 
transport enclosure be measured and read within or immediately adjacent 
to the primary transport enclosure. The Committee's intent is that the 
temperature be taken as close to the animal's immediate environment as 
possible, without endangering the person taking the temperature.
    Paragraph (a)(2) of Sec. 3.118 is titled ``Shelter from cold 
weather.'' We propose to redesignate this paragraph as paragraph (a)(3) 
and to make several changes to the requirements. Currently, this 
paragraph requires that transporting devices be covered to provide 
protection for marine mammals when the outdoor temperature falls below 
10  deg.C (50  deg.F). We propose to require instead that marine 
mammals be provided with species appropriate protection against cold 
weather, to accommodate animals that do not need additional protection 
at temperatures below 10  deg.C. We propose to retain the current 
requirement that the marine mammals may not be subjected to surrounding 
air temperatures that fall below 7.2  deg.C (45  deg.F) unless they are 
accompanied by an acclimation certificate in accordance with 
Sec. 3.112. Like the current provisions described above to protect 
marine mammals from overheating, the current provisions concerning cold 
weather require that the surrounding air temperature be measured and 
read in the manner prescribed in Sec. 3.117 for a period of more than 
45 minutes. For the reasons explained previously, we propose to require 
that the surrounding air temperature be measured and read within or 
immediately adjacent to the primary transport enclosure.
    Paragraph (b) of Sec. 3.118 requires that care be exercised to 
avoid handling of the primary enclosure in a manner that may cause 
physical or emotional trauma to the marine mammal inside. We propose to 
replace the phrase ``physical or emotional trauma'' with ``physical 
harm or distress.'' The Committee believes that ``distress'' would be 
more easily identified by carriers and intermediate handlers than 
``emotional trauma.'' This would eliminate anthropomorphic terminology, 
and is consistent with Sec. 2.131, which contains general handling 
requirements for all animals covered under the Act.
    Paragraph (c) of Sec. 3.118 prohibits primary enclosures used to 
transport any marine mammal from being tossed, dropped, needlessly 
tilted, or stacked in a manner that may reasonably be expected to 
result in their falling. We propose to replace the phrase ``in a manner 
that may reasonably be expected to result in their falling'' with the 
phrase ``unless properly secured.'' The Committee believes that 
requiring stacked enclosures to be secured would more likely ensure 
that they would not fall.

Executive Order 12866 and Regulatory Flexibility Act

    This proposed rule has been reviewed under Executive Order 12866. 
The rule has been determined to be significant for the purposes of 
Executive Order 12866 and, therefore, has been reviewed by the Office 
of Management and Budget.
    This proposed rule would amend the Animal Welfare Act regulations 
concerning the humane handling, care, treatment, and transportation of 
marine mammals in captivity. These proposed regulations were developed 
by the Marine Mammal Negotiated Rulemaking Advisory Committee, and 
appear to be necessary to ensure the minimum standards for the humane 
handling, care, treatment, and transportation of marine mammals in 
captivity are based on current general, industry, and scientific 
knowledge and experience.
    There are 116 establishments that contain marine mammals in the 
United States: 40 aquariums, 70 zoos, and 6 research facilities. Of the 
aquariums, 28 are private, 5 belong to small cities, and 7 are owned by 
States. Of the zoos, 19 are private, 12 are owned by large cities, 23 
are owned by small cities, 3 are owned by counties, and 13 belong to 
States. Of the research facilities, 2 are privately owned and 4 are 
owned by the public (such as State universities). The average annual 
revenue for an

[[Page 8747]]

establishment is approximately $1.46 million. Nearly 95 percent of the 
establishments have annual revenues of less than $5 million and, thus, 
are considered to be small according to the Small Business 
Administration size standards.1 There were 1,429 marine 
mammals in these establishments during FY 1997. These included 357 
Group I cetaceans, 89 Group II cetaceans, 796 Group I pinnipeds, 16 
Group II pinnipeds, 39 sirenians, 21 mustelidae and 111 polar bears. 
(Group designations for cetaceans and pinnipeds are as shown in Table 
III of Sec. 3.104 of the regulations.) The Atlantic bottlenose dolphin, 
harbor seal, California sea lion, and polar bear are the predominant 
varieties of captive marine mammals, accounting for approximately 74 
percent of the total number of captive marine mammals. The second 
largest group includes the West Indian manatee, walrus, common dolphin, 
Pacific bottlenose dolphin, and Atlantic white-sided dolphin. These 
represented 13.3 percent of the total number of captive marine mammals 
in FY 1997.
---------------------------------------------------------------------------

    \1\ Arboreta and botanical or zoological gardens with less than 
$5 million in annual revenues are classified as being small 
according to the Small Business Administration guide for defining 
industries for size standards. Source: 13 CFR 121.601, SIC 0272, p. 
354.
---------------------------------------------------------------------------

    Arboreta and botanical or zoological gardens comprise an important 
subgroup of the amusement parks industry, generating more than $653 
million dollars in revenues and attracting close to 50 million visitors 
annually. There were 448 establishments in this subgroup in 1992, 
including the 116 that are regulated for marine mammals. About 27 
percent of these are operated for-profit; the rest are nonprofit 
organizations owned publicly by States, counties, or cities, or owned 
privately. Ten percent of the 116 facilities regulated for marine 
mammals display regulated captive marine mammals exclusively; the 
others may exhibit a combination of marine mammals and terrestrial 
animals or terrestrial animals exclusively. Some facilities licensed to 
exhibit marine mammals host only a single variety of marine mammal 
(e.g., only dolphins, only harbor seals, or only polar bears). Marine 
mammals account for a very small fraction of all animals in captivity, 
which number in the hundreds of species.
    Most facilities exhibiting marine mammals charge admission fees. 
Overall, visitor admission fees cover less than 30 percent of the 
annual budget of zoos and aquariums, although the fees vary 
substantially between facilities. A few facilities, mostly those that 
are city owned, do not charge visitors for admission. Fees range from 
$1 to $41 dollars for adults, from $0 to $33 for children, and from $0 
to $36 for seniors. Admission rates to the for-profit facilities are 
higher than those of nonprofit facilities, which have some of their 
budget covered through appropriations and donations.2 If the 
proposed regulatory changes significantly increase the operational 
expenses of a facility, admission fees for that facility could be 
increased. However, the increases in operational expenses as a result 
of this proposed rule should not have any significant impact on 
entrance fees in most facilities.
---------------------------------------------------------------------------

    \2\ Much of the admission fee information was obtained from 
Internet home pages of aquariums and botanical and zoological 
gardens. Data obtained from the home pages was checked with recorded 
messages of many of the facilities.
---------------------------------------------------------------------------

    Other than admission charges, these facilities often generate 
income by renting space for large group functions such as family 
reunions, wedding receptions, and corporate parties. City-and State-
owned facilities finance their budgets through annual appropriations, 
membership sales, concessions, grants, and donations. The principal 
sources of income for privately-owned nonprofit establishments include 
food service, funding drives, membership dues, gift shops, grants, and 
donations. Many facilities encourage membership through yearly passes 
that also provide members of one facility with access to other similar 
facilities. Some zoos offer guided excursions to other parts of the 
world. A portion of the generated income is often directed to 
conservation efforts.
    The proposed rule changes are intended to result in clearer, more 
easily understood regulatory language and increased levels of care for 
marine mammals. Alternatives to the proposed language were well 
discussed and debated during the course of the negotiated rulemaking 
meetings, and the consensus language reflects the best efforts of all 
participating parties to ensure the health and well-being of marine 
mammals in captivity.
    Several of the proposed amendments would simplify and clarify the 
language of the existing requirements without requiring any substantial 
changes. Some of the proposed amendments would result in some 
additional costs for facilities housing marine mammals if they are not 
already in compliance with the proposed standards. Since approximately 
90 percent of the facilities already meet the proposed standards set by 
consensus and already practice sound marine mammal husbandry, costs for 
them should remain unaffected. For the remaining facilities, increased 
costs as a result of this proposed rule would likely be passed on to 
the public in the form of increased admission fees or would result in 
changes in the facility's collection size or diversity.
    While it is difficult to quantify all the benefits of this proposed 
rule, the conditions of captive marine mammals are expected to improve 
as a result of this action. As stated above, we believe that 
approximately 90 percent of licensed marine mammal facilities are 
already meeting or exceeding the proposed requirements. Therefore, the 
impact of the proposed requirements would be most apparent within the 
approximately 10 percent of licensed marine mammal facilities that are 
not already meeting or exceeding the proposed requirements. The 
proposed requirements that would likely have the most impact on these 
facilities are the requirements that clarify veterinary care for marine 
mammals. Preventive care during annual or semiannual examinations (as 
proposed in this rule) would potentially reduce emergency veterinary 
costs and result in fewer marine mammal deaths because of increased 
health of the animals. Healthier animals would also have an increased 
life expectancy and improved reproductive outcomes. In general, any 
improvements in the care and maintenance of marine mammals would be 
reflected in lower levels of animal distress and suffering and improved 
quality of life. In addition, improved conditions for captive marine 
mammals would result in increased satisfaction for the public that 
views these animals in zoos and aquariums. This rulemaking represents 
an important, sensitive, and precedent-setting effort. We believe the 
benefits of regulating standards of care for captive marine mammals 
outweigh the potential costs to facilities exhibiting these animals.
    Following are the proposed rule changes that could generate minor 
cost increases in facilities that do not already meet the proposed 
standards.
    Section 3.101 requires facilities to have a contingency plan 
addressing relocation during an emergency or natural disaster. We are 
proposing that additional and more detailed contingency plans be kept.
    In Sec. 3.105, we are proposing to require that a daily record of 
animal feeding be kept by an employee or attendant of the facility, 
noting daily food consumption of the marine mammals in the facility. 
Individual feeding records would have to be maintained at the facility 
for a

[[Page 8748]]

period of 1 year. Personnel costs to provide for planning, observation, 
documentation, and record maintenance may increase as a result of these 
proposed requirements, depending on present staffing.
    In Sec. 3.108, we are proposing to expand the training requirements 
for employees and attendants. Facilities would have to provide and 
document participation in, and successful completion of, a facility 
training course by a sufficient number of employees (meaning a number 
sufficient to maintain the prescribed level of husbandry set forth in 
the regulations. This would generally mean a minimum of two employees, 
but could be more, depending on the size of the facility.). Training 
would need to be done under the direct supervision of experienced 
trainers who meet professionally recognized standards for their own 
experience and training. The length of such training sessions are 
estimated here to be about 4 hours for each trainee. Any increase in 
costs as a result of this requirement would depend on the current 
training practice of a facility.
    In Sec. 3.109, we are proposing to require a written plan for any 
animals kept in isolation. The plan would have to be approved by the 
attending veterinarian and developed in consultation with the 
husbandry/training staff of the facility. The plan would have to 
include justification for the length of time an animal will be 
isolated, the type and frequency of enrichment used to offset the 
separation or isolation, the interactions planned, and provision for a 
periodic review by the attending veterinarian. At present, there are 
not more than 20 animals being housed separately throughout the 
country. Such record preparation and review by professionals would 
probably not require more than 30 minutes per animal per week.
    In Sec. 3.110, medical recordkeeping requirements for each animal 
would be added. Again, this would probably not entail more than 30 
minutes for each animal twice per year. We are also proposing to add 
requirements concerning examinations of marine mammals by the attending 
veterinarian. All marine mammals in a facility would have to be 
visually examined at least semiannually and physically examined when 
deemed necessary, except that cetaceans and sirenians would have to be 
physically examined at least annually. The physical examinations would 
have to include a hands-on physical examination, hematology and blood 
chemistry, and other diagnostic tests as determined by the attending 
veterinarian. Examinations would take an average of approximately 2 
hours per animal. Proposed Sec. 3.110 would also require that both a 
preliminary and final necropsy report be completed by the attending 
veterinarian. While most facilities currently provide preliminary and 
final reports, only one necropsy report is required under current 
regulations.
    In Sec. 3.112, we are proposing to require that a health 
certificate, and possibly an acclimation certificate, signed by the 
attending veterinarian accompany each animal that is moved to another 
facility. Issuance of these certificates would not take more than 15 
minutes per animal, with an average of two animals moving per facility 
per year.
    In Sec. 3.116, we are proposing to require that any transport of a 
marine mammal for longer than 2 hours duration would require 
preparation of a transport plan. Preparing such transport plans would 
take about \1/2\ to 2 hours, depending on circumstances. Most 
facilities transport marine mammals fewer than two times per year. 
Facilities that transport marine mammals more often generally have 
protocols already in place to address this issue. We are proposing that 
certain pregnant marine mammals, unweaned young, nursing mothers with 
young, and marine mammals with certain medical conditions be 
transported only after approval of the attending veterinarian and with 
a determination by the attending veterinarian as to whether or not a 
veterinarian should accompany the marine mammal during transport. We 
estimate that not more than five marine mammals that fit one of these 
categories are transported per year. We also propose that an employee 
or attendant must travel with polar bears being transported to provide 
care for the animal. Nationally, not more than 10 polar bears are 
transported per year; an average transport by land takes about 12 
hours.
    Taken together, these proposed requirements could result in total 
increase in expenditures of about $473,000 for all regulated facilities 
together (see Table A for details). This would yield an average 
increase in expenditures of $378 per animal per year or about $1.04 per 
animal per day. The table below details the potential additional 
expenses for marine mammal facilities as a result of the requirements 
in this proposed rule.

Table A.--Additional Costs of Recordkeeping and Training Requirements for All Regulated Marine Mammal Facilities
                                                    Combined
----------------------------------------------------------------------------------------------------------------
                                                       Non-
                                                   professional    Professional    Veterinarian   Total value in
                     Section                       staff  ($15/    staff  ($20/   ($25/hour) \3\      dollars
                                                     hour) \1\       hour) \2\
----------------------------------------------------------------------------------------------------------------
                                                                   Time in hours
3.101...........................................  ..............              58  ..............       $1,160.00
3.105...........................................          21,170  ..............             464      329,150.00
3.108...........................................             928             928  ..............       32,480.00
3.109...........................................  ..............  ..............              10          250.00
3.110...........................................  ..............       \4\ 2,858           1,893      104,485.00
3.112...........................................  ..............              29              29        1,305.00
3.116...........................................             120  ..............        \5\ 60.5        3,312.50
                                                 ---------------------------------------------------------------
    Total Hours.................................          22,218           3,873         2,456.5  ..............
    Total Cost..................................         333,270          77,460       61,412.50      472,142.50
----------------------------------------------------------------------------------------------------------------
Note: 1,2,3 Denote estimated hourly wages of nonprofessional attendant, nonveterinarian professional, and
  veterinarian professional, respectively.
4 Represents number of hematology and blood chemistry tests based on two tests per marine mammal per year.
  Average cost of each test is about $20. However, the cost of tests are variable depending on volume and
  whether they are done in private laboratories or on site. Additionally, most of these tests are already done.
5 Represents approval of 1 transport plan per year per facility (116) at 30 minutes each and approval of
  transport for 5 marine mammals with medical conditions per year at 30 minutes each.


[[Page 8749]]

    Because this regulatory action was initiated at the request of the 
major stakeholders and was undertaken using negotiated rulemaking, the 
resulting proposal is broadly supported by affected groups. 
Additionally, since 90 percent of licensed marine mammal facilities are 
already meeting or exceeding the proposed requirements, the actual 
economic effect of this proposed rule is expected to be minimal.
    Under these circumstances, the Administrator of the Animal and 
Plant Health Inspection Service has determined that this action would 
not have a significant economic impact on a substantial number of small 
entities.

Executive Order 12372

    This program/activity is listed in the Catalog of Federal Domestic 
Assistance under No. 10.025 and is subject to Executive Order 12372, 
which requires intergovernmental consultation with State and local 
officials. (See 7 CFR part 3015, subpart V.)

Executive Order 12988

    This proposed rule has been reviewed under Executive Order 12988, 
Civil Justice Reform. It is not intended to have retroactive effect. 
This rule would not preempt any State or local laws, regulations, or 
policies, unless they present an irreconcilable conflict with this 
rule. The Act does not provide administrative procedures which must be 
exhausted prior to a judicial challenge to the provisions of this rule.

Paperwork Reduction Act

    In accordance with section 3507(d) of the Paperwork Reduction Act 
of 1995 (44 U.S.C. 3501 et seq.), the information collection or 
recordkeeping requirements included in this proposed rule have been 
submitted for approval to the Office of Management and Budget (OMB). 
Please send written comments to the Office of Information and 
Regulatory Affairs, OMB, Attention: Desk Officer for APHIS, Washington, 
DC 20503. Please state that your comments refer to Docket No. 93-076-
11. Please send a copy of your comments to:
    1. Docket No. 93-076-11, Regulatory Analysis and Development, PPD, 
APHIS, suite 3C03, 4700 River Road Unit 118, Riverdale, MD 20737-1238, 
and
    2. Clearance Officer, OCIO, USDA, room 404-W, 14th Street and 
Independence Avenue SW., Washington, DC 20250. A comment to OMB is best 
assured of having its full effect if OMB receives it within 30 days of 
publication of this proposed rule.
    This proposed rule would introduce various information collection 
and recordkeeping requirements to enable us to determine that a marine 
mammal is receiving adequate care. These include requirements that 
licensed facilities prepare written protocols for cleaning primary 
enclosure surfaces, written contingency plans for emergency sources of 
power and water in the event of a failure, and written transport plans; 
maintain feeding records and medical records; prepare preliminary and 
final necropsy reports; acquire health certificates to accompany 
transports; and make requests to APHIS if exception from various other 
requirements is desired.
    We are soliciting comments from the public (as well as affected 
agencies) concerning our proposed information collection and 
recordkeeping requirements. We need this outside input to help us:
    1. Evaluate whether the proposed information collection is 
necessary for the proper performance of our agency's functions, 
including whether the information will have practical utility;
    2. Evaluate the accuracy of our estimate of the burden of the 
proposed information collection, including the validity of the 
methodology and assumptions used;
    3. Enhance the quality, utility, and clarity of the information to 
be collected;
    4. Minimize the burden of the information collection on those who 
are to respond (such as through the use of appropriate automated, 
electronic, mechanical, or other technological collection techniques or 
other forms of information technology, e.g., permitting electronic 
submission responses).
    Estimate of burden: Public reporting burden for this collection of 
information is estimated to average .34189 hours per response.
    Respondents: Facilities licensed to exhibit marine mammals, such as 
aquariums and zoos, and research facilities that use marine mammals.
    Estimated annual number of respondents: 129.
    Estimated annual number of responses per respondent: 110.147.
    Estimated annual number of responses: 14,209.
    Estimated total annual burden on respondents: 4858 hours. (Due to 
rounding, the total annual burden hours may not equal the product of 
the annual number of responses multiplied by the average reporting 
burden per response.)
    Copies of this information collection can be obtained from: 
Clearance Officer, OCIO, USDA, room 404-W, 14th Street and Independence 
Avenue SW., Washington, DC 20250.

List of Subjects in 9 CFR Part 3

    Animal welfare, Marine mammals, Pets, Reporting and recordkeeping 
requirements, Research, Transportation.

    Accordingly, we propose to amend 9 CFR part 3, as follows:

PART 3--STANDARDS

    1. The authority citation for part 3 would continue to read as 
follows:

    Authority: 7 U.S.C. 2131-2159; 7 CFR 2.22, 2.80, and 371.2(d).

    2. Section 3.101 is revised to read as follows:


Sec. 3.101  Facilities, general.

    (a) Construction requirements. (1) Indoor and outdoor housing 
facilities for marine mammals shall be structurally sound and shall be 
maintained in good repair, to protect the animals from injury, to 
contain the animals within the facility, and to restrict the entrance 
of unwanted animals. Lagoon and similar natural seawater facilities 
must maintain effective barrier fences, or other appropriate measures, 
on all sides of the enclosure not contained by dry land, extending 
above the high tide water level, to fulfill the requirements of this 
section.
    (2) All marine mammals shall be provided with protection from abuse 
and harassment by the viewing public by the use of a sufficient number 
of uniformed or readily identifiable employees or attendants to 
supervise the viewing public, or by physical barriers, such as fences, 
walls, glass partitions, or distance, or any combination thereof.
    (3) All surfaces in a primary enclosure shall be constructed of 
durable, nontoxic materials which facilitate cleaning, and disinfection 
as appropriate, sufficient to maintain water quality parameters as 
designated in Sec. 3.106. All surfaces shall be maintained in good 
repair as part of a regular, ongoing maintenance program. All 
facilities shall implement a written protocol on cleaning so that 
surfaces do not constitute a health hazard to animals.
    (4) Facilities which utilize natural water areas, such as tidal 
basins, bays, or estuaries (subject to natural tidewater action) for 
housing marine mammals shall be exempt from the drainage requirements 
of paragraph (c)(1) of this section.
    (b) Water and power supply. Reliable and adequate sources of water 
and electric power shall be provided by the facility housing marine 
mammals.

[[Page 8750]]

Written contingency plans must be submitted to and approved by the 
Deputy Administrator regarding emergency sources of water and electric 
power in the event of failure of the primary sources, when such failure 
could reasonably be expected to be detrimental to the good health and 
well-being of the marine mammals housed therein. Contingency plans 
shall include, but not be limited to, specific animal evacuation plans 
in the event of a disaster, and should describe back-up systems and/or 
arrangements for relocating marine mammals requiring artificially 
cooled or heated water. If the emergency contingency plan includes 
release of marine mammals, the plan must include provision for recall 
training and retrieval of such animals.
    (c) Drainage. (1) Adequate drainage shall be provided for all 
primary enclosure pools and shall be located so that all of the water 
contained in such pools may be effectively eliminated when necessary 
for cleaning the pool or for other purposes. Drainage effluent from 
primary enclosure pools shall be disposed of in a manner that complies 
with all applicable Federal, State, and local pollution control laws.
    (2) Drainage shall be provided for primary enclosures and areas 
immediately surrounding pools. All drain covers and strainers shall be 
securely fastened in order to minimize the potential risk of animal 
entrapment. Drains shall be located so as to rapidly eliminate excess 
water (except in pools). Drainage effluent shall be disposed of in a 
manner that complies with all applicable Federal, State, and local 
pollution control laws.
    (d) Storage. Supplies of food shall be stored in facilities which 
adequately protect such supplies from deterioration, spoilage (harmful 
microbial growth), or vermin or other contamination. Refrigerators and 
freezers (or chilled and/or iced coolers for under 12 hours) shall be 
used for perishable food. No substances which are known to be or may be 
toxic or harmful to marine mammals may be stored or maintained in the 
marine mammal food storage or preparation areas, except that cleaning 
agents may be kept in secured cabinets designed and located to prevent 
food contamination. Food, supplements, and medications may not be used 
beyond commonly accepted shelf life or date listed on the label.
    (e) Waste disposal. Provision shall be made for the removal and 
disposal of animal and food wastes, dead animals, trash, and debris. 
Disposal facilities shall be provided and operated in a manner which 
will minimize odors, and the risk of vermin infestation and disease 
hazards. All waste disposal procedures must comply with all applicable 
Federal, State, and local laws pertaining to pollution control, 
protection of the environment, and public health.
    (f) Employee washroom facilities. Washroom facilities containing 
basins, sinks, and showers as appropriate, shall be provided and 
conveniently located to maintain cleanliness among employees, 
attendants, and volunteers. These facilities shall be cleaned and 
sanitized daily.
    (g) Enclosure or pool environmental enhancements. Any nonfood 
objects provided for the entertainment or stimulation of marine mammals 
must be of sufficient size and strength to not be ingestible, readily 
breakable, or likely to cause injury to marine mammals, and be able to 
be cleaned, sanitized, and/or replaced effectively.
    3. In Sec. 3.104, paragraph (a) is revised to read as follows:


Sec. 3.104  Space requirements.

    (a) General. Marine mammals must be housed in primary enclosures 
which comply with the minimum space requirements prescribed by this 
part. These enclosures shall be constructed and maintained so that the 
animals contained therein are provided with sufficient space, both 
horizontally and vertically, so that they are able to make normal 
postural and social adjustments with adequate freedom of movement, in 
or out of the water. (An exception to these requirements is provided in 
Sec. 3.110(b), concerning isolation or separation for medical treatment 
and/or medical training.) Enclosures smaller than required by the 
standards may be temporarily used for nonmedical training, breeding, 
holding, and transfer purposes. If maintenance in such enclosures for 
nonmedical training, breeding, or holding, is to last longer than 2 
weeks, such extension must be justified in writing by the attending 
veterinarian on a weekly basis. If maintenance in such enclosures for 
transfer is to last longer than 1 week, such extension must be 
justified in writing by the attending veterinarian on a weekly basis. 
Such enclosures, for example, gated side pools abutting primary 
enclosures, shall not be used for permanent housing purposes. Rotating 
animals between enclosures which do and do not meet minimum space 
requirements is not acceptable to comply with these standards.
* * * * *
    4. Section 3.105 is revised to read as follows:


Sec. 3.105  Feeding.

    (a) The food for marine mammals shall be wholesome, palatable, and 
free from contamination, and shall be of sufficient quantity and 
nutritive value to maintain marine mammals in a state of good health. 
The diet shall be prepared with consideration for factors such as age, 
species, condition, and size of the marine mammal being fed. Marine 
mammals shall be offered food at least once a day, except as directed 
by the attending veterinarian.
    (b) Food receptacles, if used, shall be located so as to be 
accessible to all marine mammals in the same primary enclosure and 
shall be placed so as to minimize contamination of the food contained 
therein. Such food receptacles shall be cleaned and sanitized after 
each use.
    (c) Food, when given to each marine mammal individually, shall be 
given by an employee or attendant responsible to management who has the 
necessary knowledge to assure that each marine mammal receives an 
adequate quantity of food to maintain it in good health. Such employee 
or attendant is required to have the ability to recognize deviations 
from a normal state of good health in each marine mammal so that the 
food intake can be adjusted accordingly. Inappetence exceeding 24 hours 
must be reported immediately to the attending veterinarian. Public 
feeding shall be permitted only in the presence and under the 
supervision of a sufficient number of knowledgeable, uniformed 
employees or attendants. Such employees or attendants must assure that 
the marine mammals are receiving the proper amount and type of food. 
Only food supplied by the facility where the marine mammals are kept 
shall be fed to such marine mammals by the public. Marine mammal 
feeding records noting the estimated individual daily consumption shall 
be maintained at the facility for a period of 1 year and shall be made 
available for APHIS inspection.
    (d) Food preparation and handling shall be conducted so as to 
assure the wholesomeness and nutritive value of the food. Frozen fish 
or other frozen food shall be stored in freezers which are maintained 
at a maximum temperature of -18  deg.C (0  deg.F). The length of time 
food is stored and the method of storage, the thawing of frozen food, 
and the maintenance of thawed food shall be conducted in a manner which 
will minimize contamination and which will assure that the food retains 
nutritive value and wholesome quality until the time of feeding. When 
food is thawed in standing or running water, cold water shall be used. 
All foods shall

[[Page 8751]]

be fed to the marine mammals within 24 hours following the removal of 
such foods from the freezers for thawing, or if the food has been 
thawed under refrigeration, it must be fed to the marine mammals within 
24 hours of thawing.
    5. Section 3.107 is revised to read as follows:


Sec. 3.107  Sanitation.

    (a) Primary enclosures. (1) Animal and food waste in areas other 
than the pool of water shall be removed from the primary enclosures at 
least daily, and more often when necessary in order to provide a clean 
environment and minimize health and disease hazards.
    (2) Particulate animal and food waste, trash, or debris that enters 
the primary enclosure pools of water shall be removed at least daily, 
or as often as necessary to maintain the required water quality and to 
minimize health and disease hazards to the marine mammals contained 
therein.
    (3) The wall and bottom surfaces of the primary enclosure pools of 
water shall be cleaned as often as necessary to maintain proper water 
quality. Natural organisms (such as algae, coelenterates, or molluscs, 
for example) that do not degrade water quality as defined in 
Sec. 3.106, prevent proper maintenance, or pose a health or disease 
hazard to the animals shall not be considered contaminants.
    (b) Food preparation. Equipment and utensils used in food 
preparation shall be cleaned and sanitized after each use. Kitchens and 
other food handling areas where animal food is prepared shall be 
cleaned at least once daily and sanitized at least once every week. 
Sanitizing shall be accomplished by washing with hot water (82  deg.C, 
180  deg.F, or higher) and soap or detergent in a mechanical 
dishwasher, or by washing all soiled surfaces with a detergent solution 
followed by a safe and effective disinfectant, or by cleaning all 
soiled surfaces with live steam. Substances such as cleansing and 
sanitizing agents, pesticides, and other potentially toxic agents must 
be stored in properly labeled containers away from food preparation 
surface areas.
    (c) Housekeeping. Buildings and grounds, as well as exhibit areas, 
shall be kept clean and in good repair. Fences shall be maintained in 
good repair. Primary enclosures housing marine mammals shall not have 
any loose objects or sharp projections and/or edges which may cause 
injury or trauma to the marine mammals contained therein.
    (d) Pest control. A safe and effective program for the control of 
insects, ectoparasites, and avian and mammalian pests shall be 
established and maintained. Insecticides or other such chemical agents 
shall not be applied in primary enclosures housing marine mammals 
except when deemed essential by an attending veterinarian.
    6. Section 3.108 is revised to read as follows:


Sec. 3.108  Employees or attendants.

    (a) A sufficient number of adequately trained employees or 
attendants, responsible to management and working in concert with the 
attending veterinarian, shall be utilized to maintain the prescribed 
level of husbandry practices set forth in this subpart. Such practices 
shall be conducted under the supervision of a marine mammal caretaker 
who has demonstrable experience in marine mammal husbandry and care.
    (b) The facility will provide and document participation in and 
successful completion of a facility training course for such employees. 
This training course will include, but is not limited to, species 
appropriate husbandry techniques, animal handling techniques, and 
information on proper reporting protocols, such as recordkeeping and 
notification of veterinary staff for medical concerns.
    (c) Any training of marine mammals shall be done by or under the 
direct supervision of experienced trainers.
    (d) Trainers and handlers must meet professionally recognized 
standards for experience and training.
    7. Section 3.109 is revised to read as follows:


Sec. 3.109  Separation.

    Marine mammals, whenever known to be primarily social in the wild, 
shall be housed in their primary enclosure with at least one compatible 
animal of the same or biologically related species, except when the 
attending veterinarian, in consultation with the husbandry/training 
staff, determines that such housing is not in the best interest of the 
marine mammal's health or well-being. However, marine mammals which are 
not compatible shall not be housed in the same enclosure. Marine 
mammals shall not be housed near other animals that cause them 
unreasonable stress or discomfort, or interfere with their good health. 
Animals housed separately must have a written plan, approved by the 
attending veterinarian, developed in consultation with the husbandry/
training staff, which includes information on the justification for the 
length of time the animal will be kept separated or isolated, type and 
frequency of enrichment, and interaction if appropriate, and provisions 
for periodic review of the plan by the attending veterinarian. Marine 
mammals that are separated for nonmedical purposes must be held in 
facilities which meet minimum space requirements as outlined in 
Sec. 3.104.
    8. Section 3.110 is revised to read as follows:


Sec. 3.110  Veterinary care.

    (a) Newly acquired marine mammals shall be isolated from resident 
marine mammals. Animals with a known medical history shall be isolated 
unless or until the newly acquired animal(s) can be reasonably 
determined to be in good health by the attending veterinarian. Animals 
without a known medical history shall be isolated until it is 
determined that the newly acquired animal(s) is (are) determined to be 
in good health by the attending veterinarian. Any communicable disease 
condition in a newly acquired marine mammal must be remedied before it 
is placed with resident marine mammals, unless, in the judgement of the 
attending veterinarian, the potential benefits of a resident animal(s) 
as a companion(s) to the newly acquired animal outweigh the risks to 
the resident animal(s).
    (b) Holding facilities shall be in place and available to meet the 
needs for isolation, separation, medical treatment, and medical 
training of marine mammals. Marine mammals that are isolated or 
separated for nonmedical purposes must be held in facilities which meet 
minimum space requirements as outlined in Sec. 3.104. Holding 
facilities used only for medical treatment and medical training, need 
not meet the minimum space requirements as outlined in Sec. 3.104. 
Holding of a marine mammal in a medical treatment or medical training 
enclosure which does not meet minimum space requirements for periods 
longer than 2 weeks must be noted in the animal's medical record and 
justified therein by the attending veterinarian. If holding in such 
enclosures for medical treatment and/or medical training is to last 
longer than 2 weeks, such extension must be justified in writing by the 
attending veterinarian on a weekly basis. In natural lagoon or coastal 
enclosures where isolation cannot be accomplished, since water 
circulation cannot be controlled or isolated, separation of newly 
acquired marine mammals shall be accomplished using separate enclosures 
situated within the facility to prevent direct contact and to minimize 
the risk of potential airborne and water cross-

[[Page 8752]]

contamination between newly acquired and resident animals.
    (c) Any holding facility used for medical purposes which has 
contained a marine mammal(s) with an infectious or contagious disease 
shall be cleaned and/or sanitized in a manner prescribed by the 
attending veterinarian. No healthy animals shall be introduced into 
this holding facility prior to such cleaning and/or sanitizing 
procedures. Any marine mammal exposed to a contagious animal shall be 
evaluated by the attending veterinarian and monitored and/or isolated 
for an appropriate period of time as determined by the attending 
veterinarian.
    (d) Individual animal medical records must be kept and made 
available for APHIS inspections. These medical records shall include at 
least the following information:
    (1) Animal ID/name, a physical description, including any 
identifying markings, scars, etc., age, and sex; and
    (2) Physical examination information, including but not limited to 
length, weight, physical examination results by body system, 
identification of all medical and physical problems with proposed plan 
of action, all diagnostic test results, and documentation of treatment.
    (e) A copy of the individual animal medical record shall accompany 
any marine mammal upon its transfer to another facility, including 
contract or satellite facilities.
    (f) All marine mammals shall be visually examined by the attending 
veterinarian at least semiannually and shall be physically examined 
under the supervision of and when determined to be necessary by the 
attending veterinarian. All cetaceans and sirenians shall be physically 
examined by the attending veterinarian at least annually, unless APHIS 
grants an exception from this requirement based on considerations 
related to the health and safety of the cetacean or sirenian. These 
examinations shall include, but are not limited to, a hands-on physical 
examination, hematology and blood chemistry, and other diagnostic tests 
as determined by the attending veterinarian.
    (g)(1) A complete necropsy, including histopathology samples, 
microbiological cultures, and other testing as appropriate, shall be 
conducted by or under the supervision of the attending veterinarian on 
all marine mammals that die in captivity. A preliminary necropsy report 
must be prepared by the veterinarian listing all pathologic lesions 
observed. The final necropsy report shall include all gross and 
histopathological findings, the results of all lab tests performed, and 
a pathological diagnosis.
    (2) Necropsy records will be maintained at the facility for a 
period of 3 years and must be presented to APHIS inspectors when 
requested.
    9. Section Sec. 3.112 is revised to read as follows:


Sec. 3.112  Consignments to carriers and intermediate handlers.

    (a) Carriers and intermediate handlers shall not accept any marine 
mammal presented by any dealer, research facility, exhibitor, operator 
of an auction sale, or other person, or any department, agency, or 
instrumentality of the United States or any State or local government 
for shipment, in commerce, more than 4 hours prior to the scheduled 
departure of the primary conveyance on which it is to be transported, 
and that is not accompanied by a health certificate signed by the 
attending veterinarian stating that the animal was examined within the 
prior 10 days and found to be in acceptable health for transport: 
Provided, however, that the carrier or intermediate handler and any 
dealer, research facility, exhibitor, operator of an auction sale, or 
other person, or any department, agency, or instrumentality of the 
United States or any State or local government may mutually agree to 
extend the time of acceptance to not more than 6 hours if specific 
prior scheduling of the animal shipment to destination has been made.
    (b) Any carrier or intermediate handler shall only accept for 
transportation or transport, in commerce, any marine mammal in a 
primary transport enclosure which conforms to the requirements set 
forth in Sec. 3.113 of the standards: Provided, however, That any 
carrier or intermediate handler may accept for transportation or 
transport, in commerce, any marine mammal consigned by any department, 
agency, or instrumentality of the United States having laboratory 
animal facilities or exhibiting animals or any licensed or registered 
dealer, research facility, exhibitor, or operator of an auction sale if 
the consignor furnishes to the carrier or intermediate handler a 
certificate, signed by the consignor, stating that the primary 
transport enclosure complies with Sec. 3.113 of the standards, unless 
such primary transport enclosure is obviously defective or damaged and 
it is apparent that it cannot reasonably be expected to contain the 
marine mammal without causing suffering or injury to such marine 
mammal. A copy of such certificate shall accompany the shipment to 
destination. The certificate shall include at least the following 
information:
    (1) Name and address of the consignor;
    (2) The number, age, and sex of animals in the primary transport 
enclosure(s);
    (3) A certifying statement (e.g., ``I hereby certify that the--
(number) primary transport enclosure(s) which are used to transport the 
animal(s) in this shipment complies (comply) with USDA standards for 
primary transport enclosures (9 CFR part 3).''); and
    (4) The signature of the consignor, and date.
    (c) Carriers or intermediate handlers whose facilities fail to 
maintain a temperature within the range of 7.2  deg.C (45  deg.F) to 
23.9  deg.C (75  deg.F) allowed by the standards may accept for 
transportation or transport, in commerce, any marine mammal consigned 
by any department, agency, or instrumentality of the United States or 
of any State or local government, or by any person (including any 
licensee or registrant under the Act, as well as any private 
individual) if the consignor furnishes to the carrier or intermediate 
handler a certificate executed by the attending veterinarian on a 
specified date which shall not be more than 10 days prior to delivery 
of such animal for transportation in commerce, stating that such marine 
mammal is acclimated to a specific air temperature range lower or 
higher than those prescribed in Secs. 3.117 and 3.118. A copy of such 
certificate shall accompany the shipment to destination. The 
certificate shall include at least the following information:
    (1) Name and address of the consignor;
    (2) The number, age, and sex of animals in the shipment;
    (3) A certifying statement (e.g., ``I hereby certify that the 
animal(s) in this shipment is (are), to the best of my knowledge, 
acclimated to an air temperature range of ______''); and
    (4) The signature of the attending veterinarian and the date.
    (d) Carriers and intermediate handlers shall attempt to notify the 
consigned at least once in every 6-hour period following the arrival of 
any marine mammals at the animal holding area of the terminal cargo 
facility. The time, date, and method of each attempted notification and 
the final notification to the consignee and the name of the person 
notifying the consignee shall be recorded on the copy of the shipping 
document retained by the carrier or intermediate handler and on a copy 
of the shipping document accompanying the animal shipment.

[[Page 8753]]

    10. Section 3.113 is revised to read as follows:


Sec. 3.113  Primary enclosures used to transport marine mammals.

    No dealer, research facility, exhibitor, or operator of an auction 
sale shall offer for transportation or transport, in commerce, any 
marine mammal in a primary enclosure which does not conform to the 
following requirements:
    (a) Primary enclosures that are used to transport marine mammals 
other than cetaceans and sirenians shall:
    (1) Be constructed from materials of sufficient structural strength 
to contain the marine mammals;
    (2) Be constructed from material that is durable, nontoxic, and 
cannot be chewed and/or swallowed;
    (3) Be able to withstand the normal rigors of transportation;
    (4) Have interiors which are free from any protrusions or hazardous 
openings that could be injurious to the marine mammals contained 
therein;
    (5) Be constructed so that no parts of the contained marine mammals 
shall be exposed to the outside of the enclosures in such a way which 
may cause injury to the animals or to persons who are nearby or who 
handle the enclosures;
    (6) Have openings which provide access into the enclosures which 
shall be secured with locking devices of a type which cannot be 
accidentally opened;
    (7) Have such openings located in a manner which makes them easily 
accessible at all times for emergency removal and potential treatment 
of any live marine mammal contained therein;
    (8) Have air inlets at heights which will provide cross ventilation 
at all levels (particularly when the marine mammals are in a prone 
position) and located on all four sides of the enclosures, and such 
ventilation openings shall be not less than 20 percent of the total 
surface area of each side of the enclosures;
    (9) Have projecting rims or other devices placed on the ends and 
sides of any enclosures which have ventilation openings to provide a 
minimum air circulation space of 7.6 centimeters (3.0 inches) between 
the enclosures and any adjacent cargo or conveyance wall;
    (10) Be constructed so as to provide sufficient air circulation 
space to maintain the temperature limits set forth in the regulations; 
and
    (11) Be equipped with adequate handholds or other devices on the 
exterior of the enclosures which shall enable them to be lifted without 
unnecessary tilting and which will ensure that the persons handling the 
enclosures will not come in contact with any marine mammal contained 
therein.
    (b) Straps, slings, harnesses, or other devices used for body 
support or restraint, when transporting marine mammals such as 
cetaceans and sirenians shall:
    (1) Be designed so as not to prevent access to such mammals by 
attendants for the purpose of administering in-transit care;
    (2) Be equipped with special padding to prevent trauma or injury at 
critical weight pressure points on the body of the marine mammals; and
    (3) Be capable of keeping the animals from thrashing about and 
causing injury to themselves or their attendants, and yet be adequately 
designed so as not to cause injury to the animals.
    (c) Primary enclosures used to transport live marine mammals shall 
be large enough to assure that:
    (1) In the case of pinnipeds, polar bears, and sea otters, each 
animal has sufficient space to turn about freely in a stance whereby 
all four feet or flippers are on the floor and the animal can sit in an 
upright position and lie in a natural position;
    (2) In the case of cetaceans and sirenians, each animal has 
sufficient space for support of its body in slings, harnesses, or other 
supporting devices, if used (as prescribed in paragraph (b) of this 
section) without causing injury to such cetaceans or sirenians due to 
contact with the primary enclosure: Provided, however, that animals may 
be restricted in their movements according to professionally accepted 
standards when such freedom of movement would constitute a danger to 
the animals, their handlers, or other persons.
    (d) Marine mammals transported in the same primary enclosure shall 
be of the same species and maintained in compatible groups. Marine 
mammals which have not reached puberty shall not be transported in the 
same primary enclosure with adult marine mammals other than their dams. 
Socially dependent animals (e.g., sibling, dam, and other members of a 
family group) shall be allowed visual and olfactory contact whenever 
reasonable. Female marine mammals shall not be transported in the same 
primary enclosure with any mature male marine mammals.
    (e) Primary enclosures used to transport marine mammals as provided 
in this section shall have solid bottoms to prevent leakage in shipment 
and shall be cleaned and sanitized in a manner prescribed in Sec. 3.107 
of the standards, if previously used. Within the primary enclosures 
used to transport marine mammals, the animals will be maintained on 
sturdy, rigid, solid floors with adequate drainage.
    (f) Primary enclosures used to transport marine mammals, except 
where such primary enclosures are permanently affixed in the animal 
cargo space of the primary conveyance, shall be clearly marked on top 
(when present) and on at least one side, or on all sides whenever 
possible, with the words ``Live Animal'' or ``Wild Animal'' in letters 
not less than 2.5 centimeters (1 inch) in height, and with arrows or 
other markings, to indicate the correct upright position of the 
container.
    (g) Documents accompanying the shipment shall be attached in an 
easily accessible manner to the outside of a primary enclosure which is 
part of such shipment or be in the possession of the shipping 
attendant.
    (h) When a primary transport enclosure is permanently affixed 
within the animal cargo space of the primary conveyance so that the 
front opening is the only source of ventilation for such primary 
enclosure, the front opening shall open directly to the outside or to 
an unobstructed aisle or passageway within the primary conveyance. Such 
front ventilation opening shall be at least 90 percent of the total 
surface area of the front wall of the primary enclosure and covered 
with bars, wire mesh, or smooth expanded metal.
    11. Section 3.114 is revised to read as follows:


Sec. 3.114  Primary conveyances (motor vehicle, rail, air and marine).

    (a) The animal cargo space of primary conveyances used in 
transporting live marine mammals shall be constructed in a manner which 
will protect the health and assure the safety and comfort of the marine 
mammals contained therein at all times. All primary conveyances used 
shall be sufficiently temperature-controlled to provide an appropriate 
environmental temperature for the species involved, to provide for the 
safety and comfort of the marine mammal, or other appropriate 
safeguards (such as, but not limited to, cooling the animal with cold 
water, adding ice to water-filled enclosures, and use of fans) shall be 
employed to maintain the animal at an appropriate temperature.
    (b) The animal cargo space shall be constructed and maintained in a 
manner which will prevent the ingress of engine exhaust fumes and gases 
in excess of that ordinarily contained in the passenger compartments.
    (c) Marine mammals shall only be placed in animal cargo spaces that 
have a supply of air sufficient for each live animal contained therein. 
Primary

[[Page 8754]]

transport enclosures shall be positioned in the animal cargo spaces of 
primary conveyances in such a manner that each marine mammal contained 
therein shall have access to sufficient air.
    (d) Primary enclosures shall be positioned in primary conveyances 
in such a manner that in an emergency the live marine mammals can be 
removed from the conveyances as soon as possible.
    (e) The interiors of animal cargo spaces in primary conveyances 
shall be kept clean.
    (f) Live marine mammals shall not knowingly be transported with any 
material, substance or device which may be injurious to the health and 
well-being of such marine mammals unless proper precaution is taken to 
prevent such injury.
    (g) Adequate lighting must be available for marine mammal 
attendants to properly inspect their charges at any time. If such 
lighting is not provided by the carrier, provisions must be made by the 
shipper to supply such lighting.
    12. Section 2.115 is revised to read as follows:


Sec. 3.115  Food and drinking water requirements.

    (a) Those marine mammals which require drinking water shall be 
offered potable water within 4 hours of being placed in the primary 
transport enclosure for transport in commerce. Marine mammals shall be 
provided water as often as necessary and appropriate for the species 
involved to prevent dehydration which would jeopardize the good health 
and well-being of the animals.
    (b) Marine mammals being transported in commerce shall be offered 
food as often as necessary and appropriate for the species involved or 
as determined by the attending veterinarian.
    13. Section 3.116 is revised to read as follows:


Sec. 3.116  Care in transit.

    (a) A licensed veterinarian, employee, and/or attendant of the 
shipper or receiver of any marine mammal being transported, in 
commerce, knowledgeable and experienced in the area of marine mammal 
care and transport, shall accompany all marine mammals during periods 
of transportation to provide for their good health and well-being, to 
observe such marine mammals and to determine whether they need 
veterinary care and to obtain any needed veterinary care as soon as 
possible. Any transport of greater than 2 hours duration requires a 
transport plan approved by the attending veterinarian, to include the 
specification of the necessity of the presence of a veterinarian during 
the transport. If the attending veterinarian does not accompany the 
animal(s), communication with the veterinarian must be maintained in 
accordance with Sec. 2.40(b)(3) of this chapter.
    (b) The following marine mammals shall only be transported in 
commerce when the transport of such marine mammals has been determined 
to be appropriate by the attending veterinarian:
    (1) A pregnant animal in the last half of pregnancy;
    (2) A dependent unweaned young animal;
    (3) A nursing mother with young; or
    (4) An animal with a medical condition requiring veterinary care, 
that would be compromised by transport.
    The attending veterinarian shall note on the accompanying health 
certificate the existence of any of the above conditions. The attending 
veterinarian shall also determine whether a veterinarian should 
accompany such marine mammals during transport.
    (c) Carriers shall inform the crew as to the presence of the marine 
mammal(s) on board the craft, inform the individual accompanying the 
marine mammal(s) of any unexpected delays as soon as they become known, 
and accommodate, except as precluded by safety considerations, requests 
by the shipper or his agent to provide access to the animal(s) or take 
other necessary actions for the welfare of the animal(s) if a delay 
occurs.
    (d) A sufficient number of employees or attendants of the shipper 
or receiver of cetaceans or sirenians being transported, in commerce, 
shall provide for such cetaceans and sirenians during periods of 
transport by:
    (1) Keeping the skin moist or preventing the drying of the skin by 
such methods as intermittent spraying of water or application of a 
nontoxic emollient;
    (2) Assuring that the pectoral flippers shall be allowed freedom of 
movement at all times;
    (3) Making adjustments in the position of such marine mammals when 
necessary to prevent necrosis of the skin at weight pressure points;
    (4) Keeping the animal cooled and/or warmed sufficiently to prevent 
overheating, hypothermia, or temperature related stress; and
    (5) Calming such marine mammals to avoid struggling, thrashing, and 
other unnecessary activity which may cause overheating or physical 
trauma.
    (e) A sufficient number of employees or attendants of the shipper 
or receiver of pinnipeds or polar bears being transported, in commerce, 
shall provide for such pinnipeds and polar bears during periods of 
transport by:
    (1) Keeping the animal cooled and/or warmed sufficiently to prevent 
overheating, hypothermia, or temperature related stress; and
    (2) Calming such marine mammals to avoid struggling, thrashing, and 
other unnecessary activity which may cause overheating or physical 
trauma.
    (f) Sea otters shall be transported in primary enclosures which 
contain false floors through which water and waste freely pass to keep 
the interior of the transport unit free from waste materials. Moisture 
shall be provided by water sprayers or ice during transport.
    (g) Marine mammals shall be removed from their primary transport 
enclosures only by the attendant(s) or other person(s) capable of 
handling such mammals safely.
    14. Section 3.117 is revised to read as follows:


Sec. 3.117  Terminal facilities.

    Carriers and intermediate handlers shall not commingle marine 
mammal shipments with inanimate cargo. All animal holding areas of a 
terminal facility of any carrier or intermediate handler wherein marine 
mammal shipments are maintained shall be cleaned and sanitized in a 
manner prescribed in Sec. 3.107 of the standards to minimize health and 
disease hazards. An effective program for the control of insects, 
ectoparasites, and avian and mammalian pests shall be established and 
maintained for all animal holding areas. Any animal holding area 
containing marine mammals shall be ventilated with fresh air or air 
circulated by means of fans, blowers, or an air conditioning system, so 
as to minimize drafts, odors, and moisture condensation. Auxiliary 
ventilation, such as exhaust fans and vents or fans or blowers or air 
conditioning shall be used for any animal holding area containing 
marine mammals when the air temperature within such animal holding area 
is 23.9  deg.C (75  deg.F) or higher. The air temperature around any 
marine mammal in any animal holding area shall not be allowed to fall 
below 7.2  deg.C (45  deg.F). The air temperature around any polar bear 
shall not be allowed to exceed 29.5  deg.C (85  deg.F) at any time and 
no polar bear shall be subjected to surrounding air temperatures which 
exceed 23.9  deg.C (75  deg.F) for more than 4 hours at any time. The 
ambient temperature must be measured in the animal holding area upon 
arrival of the shipment by the attendant, carrier, or intermediate 
handler, outside the

[[Page 8755]]

transport enclosure which contains such animal at a distance not to 
exceed 0.91 meters (3.0 feet) from any one of the external walls of the 
primary transport enclosure and on a level parallel to the bottom of 
such primary transport enclosure at a point which approximates half the 
distance between the top and bottom of such transport enclosure.
    15. Section 3.118 is revised to read as follows:


Sec. 3.118  Handling.

    (a) Carriers and intermediate handlers moving marine mammals from 
the animal holding area of the terminal facility to the primary 
conveyance or from the primary conveyance to the animal holding area of 
the terminal facility shall provide the following:
    (1) Movement of animals as expeditiously as possible.
    (2) Shelter from overheating and direct sunlight. When sunlight is 
likely to cause overheating, sunburn, or discomfort, sufficient shade 
shall be provided to protect the marine mammals. Marine mammals shall 
not be subjected to surrounding air temperatures which exceed 23.9 
deg.C (75  deg.F) unless accompanied by an acclimation certificate in 
accordance with Sec. 3.112. The temperature shall be measured and read 
within or immediately adjacent to the primary transport enclosure.
    (3) Shelter from cold weather. Marine mammals shall be provided 
with species appropriate protection against cold weather and such 
marine mammals shall not be subjected to surrounding air temperatures 
which fall below 7.2  deg.C (45  deg.F) unless accompanied by an 
acclimation certificate in accordance with Sec. 3.112. The temperature 
shall be measured and read within or immediately adjacent to the 
primary transport enclosure.
    (b) Care shall be exercised to avoid handling of the primary 
transport enclosure in such a manner that may cause physical harm or 
distress to the marine mammal contained therein.
    (c) Enclosures used to transport any marine mammal shall not be 
tossed, dropped, or needlessly tilted and shall not be stacked unless 
properly secured.

    Done in Washington, DC, this 18th day of February 1999.
Joan M. Arnoldi,
Acting Administrator, Animal and Plant Health Inspection Service.
[FR Doc. 99-4424 Filed 2-22-99; 8:45 am]
BILLING CODE 3410-34-P