[Federal Register Volume 64, Number 106 (Thursday, June 3, 1999)]
[Rules and Regulations]
[Pages 29805-29806]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-14056]


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DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

50 CFR Parts 222 and 223

[Docket No.950427117-9149-09;I.D.052799C]
RIN 0648-AH97


Sea Turtle Conservation; Restrictions Applicable to Shrimp Trawl 
Activities; Leatherback Conservation Zone

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

ACTION: Temporary rule.

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SUMMARY: NMFS is extending for 1 week its existing closure of all 
inshore waters and offshore waters out to 10 nautical miles (nm) (18.5 
km) seaward of the COLREGS demarcation line bounded by 33 deg. N. lat. 
and 34 deg. N. lat. within the leatherback conservation zone, to 
fishing by shrimp trawlers required to have a turtle excluder device 
(TED) installed in each net that is rigged for fishing, unless the TED 
has an escape opening large enough to exclude leatherback turtles, as 
specified in the regulations. This action is necessary to reduce 
mortality of endangered leatherback sea turtles incidentally captured 
in shrimp trawls.

DATES: This action is effective from May 28, 1999 through 11:59 p.m. 
(local time) on June 11, 1999.

FOR FURTHER INFORMATION CONTACT: Charles A. Oravetz, (727) 570-5312, or 
Barbara A. Schroeder (301) 713-1401. For assistance in modifying TED 
escape openings to exclude leatherback sea turtles, fishermen may 
contact gear specialists at the NMFS, Pascagoula, MS laboratory by 
phone (228) 762-4591 or by fax (228) 769-8699.

SUPPLEMENTARY INFORMATION: The taking of sea turtles is governed by 
regulations implementing the Endangered Species Act (ESA) at 50 CFR 
parts 222 and 223 (see 64 FR 14051, March 23, 1999, final rule 
consolidating and reorganizing ESA regulations). Generally, the taking 
of sea turtles is prohibited. However, the incidental take of turtles 
during shrimp fishing in the Atlantic Ocean off the coast of the 
southeastern United States and in the Gulf of Mexico is excepted from 
the taking prohibition pursuant to sea turtle conservation regulations 
at 50 CFR 223.206, which include a requirement that shrimp trawlers 
have a NMFS-approved TED installed in each net rigged for fishing. The 
use of TEDs significantly reduces mortality of loggerhead, green, 
Kemp's ridley, and hawksbill sea turtles. Because leatherback turtles 
are larger than the escape openings of most NMFS-approved TEDs, use of 
these TEDs is not an effective means of protecting leatherback turtles.
    Through a final rule (60 FR 47713, September 14, 1995), NMFS 
established regulations to protect leatherback turtles when they occur 
in locally high densities during their annual, spring northward 
migration along the Atlantic seaboard. Within the leatherback 
conservation zone, NMFS is required to close an area for 2 weeks all 
inshore and offshore waters out to 10 nm (18.5 km) seaward of the 
COLREGS demarcation line (as defined at 33 CFR part 80), when 
leatherback sightings exceed 10 animals per 50 nm (92.6 km) during 
repeated aerial surveys pursuant to 50 CFR 223.206(d)(2)(iv)(A) through 
(C).
    NMFS announced a two-week closure on May 7, 1999 (64 FR 25460, May 
12, 1999), affecting the portion of the leatherback conservation zone 
between 32 deg. N. lat. and 33 deg. N. lat. The boundaries of the 
closure correspond to those of shrimp fishery statistical zone 32. The 
closure was based on high concentrations of leatherbacks off the South 
Carolina coast, observed during aerial surveys conducted on April 27 
and May 3. During those surveys, the highest concentrations were noted 
in waters off the southern half of the state between Hilton Head 
Island, SC, and at Kiawah Island, SC. After a May 11 aerial survey 
reconfirmed the continued high abundance of leatherback turtles in that 
closed zone, NMFS extended the closure for an additional week, through 
May 28, 1999 (64 FR 27206, May 19, 1999). That survey also showed that 
the leatherbacks were continuing to move slowly northward, as expected. 
Concentrations of leatherbacks were noted between Murrells Inlet and 
Myrtle Beach.
    On May 14, 1999, 10 leatherback turtles were signted during an 
aerial survey over approximately 15 nm (28 km) trackline, beginning at 
approximately 33 deg.23' N. lat., 079 deg.07' W. long. (offshore 
Pawleys Island, SC) and ending at approximately 33 deg.35' N. lat., 
078 deg.57' W. long. (offshore Surfside Beach, SC). A repeated survey 
along the same trackline documented 12 leatherbacks on May 18, 1999.
    On May 21, 1999, NMFS issued a temporary rule closing inshore and 
offshore waters from shore out to 10 nm (18.5 km) between 33 deg. N. 
lat. and 34 deg. N. lat., unless shrimp trawlers use TEDs with escape 
openings modified to exclude leatherback turtles (64 FR 28761, May 27, 
1999). This closed area is generally from Cape Romain, South Carolina, 
to Wilmington Beach, North Carolina. This closure was to expire at 
11:59 a.m. June 4, 1999.
    On May 26, 1999, an aerial survey conducted by the South Carolina 
Department of Natural Resources documented continued concentrations of 
leatherback sea turtles between Cape Island and Murrells Inlet. A total 
of 15 leatherback sea turtles were concentrated in a 44 nm (81.4 km) 
area. Therefore, the Assistant Administrator for Fisheries, NOAA (AA), 
is closing all inshore waters and offshore waters within 10 nm (18.5 
km) seaward of the COLREGS demarcation line, bounded by 33 deg. N. lat. 
and 34 deg. N. lat., within the leatherback conservation zone to 
fishing by shrimp trawlers required to have a TED installed in each net 
that is rigged for fishing, unless the TED installed has an escape 
opening large enough to exclude leatherback turtles, meeting the 
specifications at 50 CFR 223.207(a)(7)(ii)(B) or 223.207(c)(1)(iv)(B). 
These regulations specify modifications that can be made to either 
single-grid hard TEDs or Parker soft TEDs to allow leatherbacks to 
escape. The boundaries of this closed zone correspond to those of 
shrimp fishery statistical zone 33.
    This action does not affect the current closure in zone 32. High 
concentrations of leatherback sea turtles were not documented in the 
May 26 survey, and, therefore, the closure in zone 32 will expire at 
11:59 p.m. on May 28, 1999.
    NMFS will continue to monitor the presence of leatherback sea 
turtles along the Georgia and South Carolina coasts through weekly 
aerial surveys. Continued high abundance of leatherbacks greater than 
10 turtles per 50 nm (92.6 km) of trackline will require further agency 
action, as per 50 CFR 223.206(d)(2)(iv)(B). If leatherback sightings 
fall to 5 or fewer turtles per 50 nm (92.6 km) of trackline, then the 
aerial surveys of the closed area will be replicated within 24 hours, 
or as soon as practicable thereafter. If sighting rates of 5 or fewer 
leatherbacks per 50 nm (92.6 km) are reconfirmed, the AA may withdraw 
or modify the closure that is the subject of this rule, as per 50 CFR 
223.206(d)(4)(ii). NMFS will consult with the appropriate state natural 
resource officials in the closed area in making a determination to 
withdraw or

[[Page 29806]]

modify this closure, as per 50 CFR 223.206(d)(4)(iv). Fishermen should 
monitor NOAA weather radio for announcements.
    The regulations at 50 CFR 223.206(d)(2)(iv) state that fishermen 
operating in the closed area with TEDs modified to exclude leatherback 
turtles must notify the NMFS Southeast Regional Administrator of their 
intentions to fish in the closed area. This aspect of the regulations 
does not have a current Office of Management and Budget control number, 
issued pursuant to the Paperwork Reduction Act. Consequently, fishermen 
are not required to notify the Regional Administrator prior to fishing 
in the closed area, but they must still meet the gear requirements.
    The additional closure has been announced on the NOAA weather 
channel, in newspapers, and other media. Shrimp trawlers may also call 
Charles Oravetz (see FURTHER INFORMATION CONTACT) for updated area 
closure information.

Classification

    This action has been determined to be not significant for purposes 
of E.O. 12866.
    The AA is taking this action in accordance with the requirements of 
50 CFR 223.206(d)(2)(iv) to provide emergency protection for endangered 
leatherback sea turtles from incidental capture and drowning in shrimp 
trawls. Leatherback sea turtles are occurring in high concentrations in 
coastal waters in shrimp fishery statistical zone 32. This action 
allows shrimp fishing to continue in the affected area and informs 
fishermen of the gear changes that they can make to protect leatherback 
sea turtles.
    Pursuant to 5 U.S.C. 553(b)(B), the AA finds that there is good 
cause to waive prior notice and opportunity to comment on this action. 
It would be contrary to the public interest to provide prior notice and 
opportunity for comment because providing notice and comment would 
prevent the agency from implementing the necessary action in a timely 
manner to protect the endangered leatherback. Furthermore, notice and 
opportunity to comment on this action was provided through the proposed 
rule establishing these actions (60 FR 25663, May 12, 1995). For these 
reasons, good cause exists under 5 U.S.C. 553(d)(3) not to delay the 
effective date of this rule for 30 days. As stated above, the 
additional closure has been announced on the NOAA weather radio, in 
newspapers, and other media, allowing time for the shrimp fishery to 
comply with this rule.
    As prior notice and an opportunity for public comment are not 
required to be provided for this notification by 5 U.S.C. 553, or by 
any other law, the analytical requirements of 5 U.S.C. 601 et seq. are 
inapplicable.
    The AA prepared an Environmental Assessment (EA) for the final rule 
requiring TED use in shrimp trawls and the regulatory framework for the 
Leatherback Conservation Zone (60 FR 47713, September 14, 1995). Copies 
of the EA are available (see ADDRESSES).

    Dated: May 28, 1999.
William W. Fox, Jr.
National Marine Fisheries Service, Acting Assistant Administrator for 
Fisheries.
[FR Doc. 99-14056 Filed 5-28-99; 4:31 pm]
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