[Federal Register Volume 64, Number 199 (Friday, October 15, 1999)]
[Rules and Regulations]
[Pages 55860-55864]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-27012]


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DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

50 CFR Parts 222 and 223

[Docket No.991007270-9270-01; I.D.090399E]
RIN 0648-AM89


Sea Turtle Conservation; Summer Flounder Trawling Requirements

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

ACTION: Interim final rule; request for comments.

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SUMMARY: The National Marine Fisheries Service (NMFS) is issuing this 
interim final rule to amend the regulations that require summer 
flounder trawlers to use Turtle Excluder Devices (TEDs) in waters off 
Virginia and North Carolina to reduce the incidental capture of 
endangered and threatened sea turtles. NMFS is reguiring that any 
approved hard TED or

[[Page 55861]]

special TED installed in a summmer flounder trawl be installed in a TED 
extension (a cylinder of webbing in which the TED is installed). NMFS 
also is introducing specifications for the TED extensionand requiring 
that the TED extension be constructed of webbing no larger than 3.5-
inch (8.9 cm) stretched mesh. This interim final rule is necessary to 
prevent adverse impacts to turtles in the upcoming fall/winter summer 
flounder trawling season.

DATES: This rule is effective November 15, 1999. Comments on this rule 
are requested, and must be received by December 14, 1999.
ADDRESSES: Requests for a copy of the environmental assessment (EA) 
prepared for this interim final rule, and comments on this action, 
should be addressed to the Chief, Endangered Species Division, Office 
of Protected Resources, NMFS, 1315 East-West Highway, Silver Spring, MD 
20910. Requests for copies of the reports on 1999 TED testing should be 
addressed to the Chief, Harvesting Systems Division, Mississippi 
Laboratories, Southeast Fisheries Science Center, NMFS, P.O. Drawer 
1207, Pascagoula, MS 39568-1207.

FOR FURTHER INFORMATION CONTACT: Charles A. Oravetz, 727-570-5312.

SUPPLEMENTARY INFORMATION:

Background

    All sea turtles that occur in U.S. waters are listed as either 
endangered or threatened under the Endangered Species Act of 1973 
(ESA). The Kemp's ridley (Lepidochelys kempii), leatherback 
(Dermochelys coriacea), and hawksbill (Eretmochelys imbricata) are 
listed as endangered. Loggerhead (Caretta caretta) and green (Chelonia 
mydas) turtles are listed as threatened, except for breeding 
populations of green turtles in Florida and on the Pacific coast of 
Mexico, which are listed as endangered.
    The incidental capture and mortality of these sea turtles during 
summer flounder trawling has been documented along the Atlantic 
seaboard. Under the ESA and its implementing regulations, taking sea 
turtles is prohibited, with exceptions identified in 50 CFR 223.206. 
Existing sea turtle conservation regulations (50 CFR 223.205 and 
223.206) require summer flounder trawlers operating in Atlantic waters 
between Cape Charles, VA and the NC/SC border to have a NMFS-approved 
TED installed in each net rigged for fishing, when sea turtles are 
present. TEDs currently approved by NMFS for summer flounder trawling 
include single-grid hard TEDs and hooped hard TEDs conforming to a 
generic description, the Parker soft TED, and two types of special hard 
TEDs.

Current TED Requirements

    The use of TEDs has been required in the summer flounder trawl 
fleet off North Carolina and southern Virginia since the fall of 1992 
through a series of temporary or interim rules. NMFS published a final 
rule on January 24, 1996 (61 FR 1846), that finalized the requirements 
for flounder trawlers to use TEDs in the ``summer flounder fishery-sea 
turtle protection area'' which includes the offshore waters between 
37 deg.05' N. lat. (Cape Charles, VA) and the NC/SC border. That final 
rule also provides for a seasonal exemption from the TED requirement 
north of Oregon Inlet, NC, from January 15 through March 15, annually. 
In addition, NMFS has tested and approved the use of a special hard 
TED, the Flounder TED, that was specifically designed for the summer 
flounder fishery (58 FR 54066, October 20, 1993). The Flounder TED is 
probably the primary style used in the fishery. It incorporates large 
holes in the bottom of the grid to allow the passage of large flatfish. 
Although the Parker soft TED may be used in the summer flounder 
fishery, its construction would likely cause a large loss of finfish 
catch, and NMFS believes that it is not used in the flounder fishery.
    The regulations for the technical specifications are at 50 CFR 
223.207. These specifications are quite detailed with respect to the 
final configuration of the TEDs themselves and any allowable 
modifications, such as accelerator funnels and webbing flaps. The 
specifications are intended to allow fisherman to choose all the other 
performance and construction variables of their trawl gear to match 
their fishing needs, consistent with any restrictions imposed for 
fishery management purposes. The mesh size of the trawl webbing, in 
particular, is usually chosen by the fisherman or regulated for fishery 
management purposes, and NMFS has never specified the size of webbing 
in which the TED must be installed. Shrimp trawlers generally install 
TEDs in webbing no larger than 2 inches (5.1 cm). At the time TEDs were 
first required in the summer flounder fishery, trawl mesh sizes of 3.5 
or 4 inches (8.9 or 10.2 cm) were typical.

Amendment 10 to the Summer Flounder, Scup, and Black Sea Bass 
Fishery Management Plan

    Amendment 10 was prepared by the Mid-Atlantic Fishery Management 
Council (the Council) and the Atlantic States Marine Fisheries 
Commission, in consultation with the New England and South Atlantic 
Fishery Management Councils. On December 3, 1997, NMFS published a 
final rule (62 FR 63872) to implement a number of changes to the summer 
flounder regulations, as proposed in Amendment 10. Previously, a 
minimum mesh size requirement of 5.5-inch (14.0 cm) diamond mesh or 6-
inch (15.2 cm) square mesh had applied to the codend of the net. The 
final rule extended this minimum mesh size requirement to the body and 
extension(s) of the net, effective June 3, 1998. The reason for the 
change in the mesh regulations was that the Council was concerned about 
the ``choking off'' or the constriction of codends in trawl nets in the 
summer flounder fishery, as a way of circumventing the codend mesh size 
requirements. The Council was concerned that continued poor compliance 
with mesh-size regulations would result in higher fishing mortality 
rates and in a decreased rate of stock recovery for summer flounder. 
Applying the minimum mesh-size throughout the codend, extension(s), and 
body of the net was intended to eliminate this problem.

The TED Extension

    Hard TEDs and special hard TEDs are almost always installed into a 
short cylinder of webbing, called a TED extension, rather than 
installed directly into the trawl. The TED extension can then be sewn 
directly to the net, connecting the codend to the body, or any other 
extension. Using TED extensions not only makes correct construction of 
a TED easier, but in the summer flounder fishery, where TEDs are only 
required in certain areas, it greatly simplifies the process of 
installing and removing the TED as the boat moves into and out of the 
summer flounder-sea turtle protection area.
    When summer flounder trawlers were about to begin working in the 
summer flounder-sea turtle protection area in the fall of 1998, 
fishermen began reporting problems installing and using TEDs with the 
newly required 5.5-inch (14.0-cm) mesh in the TED extension. They were 
concerned that, when using a larger mesh, the TED would be attached to 
fewer individual meshes and would therefore be weaker. In addition, 
they reported difficulties installing the TEDs at an appropriate angle 
to the water flow because of the longer individual meshes. Proper TED 
angle is an important performance factor for the TED's ability to 
exclude turtles and retain catch. Lastly, some captains were concerned 
that the large mesh in the immediate vicinity of the TED might

[[Page 55862]]

present an entanglement risk to the turtles.

Summary of Observer Results

    Through experimental testing of soft TEDs, which use panels of 
relatively large mesh webbing, NMFS has repeatedly observed that sea 
turtles can become entangled in trawl webbing as small as 4-inch (10.2-
cm), particularly when the turtles have to maneuver in a constricted 
space or when the webbing is poorly installed and slack. As soon as 
this potential problem with the large mesh TED extensions was noted, 
NMFS placed observers aboard summer flounder trawlers. Between November 
30, 1998 and February 19, 1999, 140 flounder hauls were observed on 
boats fishing between the mouth of Chesapeake Bay and Cape Lookout, NC. 
Thirteen turtles were observed captured in nets equipped with working 
TEDs installed in large mesh webbing. Of those, the observers 
specifically noted in five cases that the turtles had reached the TEDs, 
but had become entangled in the TED extensions when their flippers 
protruded through the 5.5 inch (14.0 cm) mesh. In four of the other 
captures, the TED openings were blocked by large amounts of fish around 
the TED, which was attributed by one captain to the new 5.5 inch (14.0 
cm) mesh size. Excluding one turtle that was dead before it was caught, 
0.033 turtles were caught per observed hour of trawling with TEDs 
during the winter of 1998-1999 (NMFS, unpublished data). All of the 
observed captures were north of Cape Hatteras. This capture rate, with 
TEDs, is twice the capture rate of 0.0167 turtles per hour, without 
TEDs, that was observed during the 1991-1992 season (Epperly et al., 
1995). Although other factors--primarily the warm ocean temperatures 
last winter and their effect on turtle distribution--make direct 
comparisons of these catch rates difficult, the data still indicated 
that the effectiveness of the TEDs was likely seriously compromised by 
the large mesh webbing.

Summary of TED Testing Results

    NMFS decided to further investigate the risk of turtle capture in 
large-mesh TED extensions during controlled TED testing. In June 1999, 
NMFS gear researchers conducted a TED testing session in the clear 
waters off Panama City, FL. Small loggerhead turtles were introduced 
into a flounder trawl with 5.5 inch (14.0 cm) mesh webbing throughout, 
including the TED extension. Four out of eight turtles became entangled 
in the webbing immediately forward of the TED and could not escape 
during the 5-minute time limit for the test. It was observed in 
previous TED testing that the turtles are stopped by the bars of the 
TED and must spend some amount of time exploring the extension before 
they find the exit hole and escape. During this active exploration, 
they can easily insert their head or flipper into a large opening but 
can then become entangled. NMFS originally intended to try to quantify 
any increased capture rate due to the large-mesh webbing more precisely 
using more test turtles. It quickly became clear that the capture rate 
was excessive, however, and the test was terminated. When the mesh size 
of the TED extension was changed to 3.5 inches (8.9 cm), and no 
entanglements occurred.

Provisions of this Interim Final Rule

    After considering the comments of the Council, reports from 
fishermen, observer data, and TED testing results, NMFS has determined 
that the use of large-mesh webbing around a TED installed in a summer 
flounder trawl can result in high rate of sea turtle entanglement and 
capture. The use of smaller webbing in a TED extension can prevent 
these captures. Fishermen have traditionally used a smaller mesh size 
for TED extensions, which has the advantages of greater strength, 
consistency of installation, and reduced clogging with bycatch. 
Therefore, to avoid adverse impacts on sea turtles, NMFS is requiring 
the use of TED extensions with hard TEDs and special hard TEDs 
installed in summer flounder trawls. NMFS is also specifying the mesh 
size for the TED extension. The TED extension must be constructed of 
webbing no larger than 3.5 inch (8.9 cm) stretched mesh. The TED 
extension must extend at least 24 inches (61.0 cm) but nor more than 36 
inches (91.4 cm) forward of the leading edge of the TED and aft of the 
trailing edge of the grid.

Relationship of This Rule to Other Regulations

    This rule is intended to clarify explicitly the requirements 
affecting the use of approved TEDs in summer flounder trawls. 
Regulations affecting summer flounder trawl gear have been promulgated 
by NMFS under two different legal authorities. Regulations pursuant to 
the ESA are contained in 50 CFR parts 222 and 223, while regulations 
pursuant to the Magnuson-Stevens Fishery Conservation Management Act 
are contained in 50 CFR part 648. This interim final rule does not 
change the mesh size requirements of 50 CFR 648.104(a)(1) for the body, 
codend, or extension(s) - other than the TED extension - portions of a 
summer flounder trawl net. Nor does this rule change any other aspect 
of the regulations for TED construction and installation, specified in 
50 CFR 223.207. In particular, webbing flaps used to cover the escape 
openings of hard TEDs in summer flounder trawls must be constructed of 
webbing no larger than 1-5/8 inch (4.1 cm) stretched mesh, as specified 
at 50 CFR 223.207(d)(3).

Request for Comments

    NMFS is requesting input and will accept written comments (see 
ADDRESSES) on this interim final rule until December 14, 1999. Any 
comments, suggestions, or additional data and information on this 
action will be taken into consideration before a final determination is 
made.

References

    Epperly, S.A., J. Braun, A.J. Chester, F.A. Cross, J.V. Merriner, 
and P.A. Tester. 1995. Winter distribution of sea turtles in the 
vicinity of Cape Hatteras and their interactions with the summer 
flounder trawl fishery. Bulletin of Marine Science, 56(2):547-568.
    NMFS. Unpublished data. Mid-Atlantic coastal trawl fishery observer 
data 98/99. Northeast Fisheries Science Center.

Classification

    This action has been determined to be not significant for purposes 
of E.O. 12866.
    The Assistant Administrator for Fisheries, NOAA (AA), finds that 
good cause exists, under 5 U.S.C. 553(b)(B), to waive prior notice and 
an opportunity for public comment on this rule. It is impracticable and 
contrary to the public interest to provide prior notice and opportunity 
for comment because the fall summer flounder fishery is expected to 
begin off Virginia and North Carolina in November. Trawling with TEDs 
installed in large-mesh webbing is known to capture turtles at a high 
rate, and turtle abundances are probably highest in the fishing areas 
in the earliest part of the season. Preventable deaths of endangered 
and threatened species would occur unless TED extension mesh size 
changes are made prior to the beginning of fall fishing effort. 
Furthermore, this fishery is highly valuable and anticipated by the 
participants, but is limited by quota allocations, and it frequently is 
very short. Consequently, fishers may experience significant, avoidable 
impacts if TED extension mesh sizes are changed during the course of 
the fishery and fishers lose any of their limited fishing time coming 
into compliance.

[[Page 55863]]

Fishers traditionally have to re-equip their nets with TEDs and make 
any needed net repairs before the fall season begins. Prompt 
implementation of this mesh size change will allow them to use their 
rigging time to come into compliance. With sufficient opportunity to 
make the changes, the mesh size changes in themselves pose a minimal 
burden on the fishers. The cost of the required materials (new webbing) 
is estimated at less than $20 per net, and many fishers can make the 
needed changes themselves, estimated at about two person-hours per 
boat. Finally, the use of small mesh webbing adjacent to the TED had 
been a traditional gear configuration in this fishery prior to the June 
3, 1998, requirement for the larger mesh size specified through the 
Magnuson-Stevens Fishery Conservation Management Act in 50 CFR part 
648. Thus, this interim final rule allows for the traditional practice.
    Because prior notice and opportunity for public comment are not 
required for this rule by 5 U.S.C. 553, or any other law, the 
analytical requirements of the Regulatory Flexibility Act, 5 U.S.C. 601 
et seq., are inapplicable.
    This rule does not contain a collection-of-information requirement 
for purposes of the Paperwork Reduction Act.
    The AA prepared an EA for this rule which concludes that this rule 
will have no significant impact on the human environment. A copy of the 
EA is available (see ADDRESSES).

List of Subjects in 50 CFR Part 223

     Endangered and threatened species, Exports, Imports, Marine 
mammals, Transportation.

    Dated: October 8, 1999.
Andrew A. Rosenberg,
Deputy Assistant Administrator for Fisheries, National Marine Fisheries 
Service.
    For the reasons set out in the preamble, 50 CFR part 223 is amended 
as follows:

PART 223--THREATENED MARINE AND ANADROMOUS SPECIES

    1. The authority citation for part 223 continues to read as 
follows:

    Authority: 16 U.S.C. 1531 - 1543; subpart B, Sec. 223.12 also 
issued under 16 U.S.C. 1361 et seq.

    2. In Sec. 223.206, paragraph (d)(2)(iii)(A) is revised to read as 
follows:


Sec. 223.206  Exceptions to prohibitions relating to sea turtles.

* * * * *
    (d) * * *
    (2) * * *
    (iii) * * *
    (A) TED requirement. (1) Any summer flounder trawler in the summer 
flounder fishery-sea turtle protection area must have an approved TED 
installed in each net that is rigged for fishing. A net is rigged for 
fishing if it is in the water, or if it is shackled, tied, or otherwise 
connected to any trawl door or board, or to any tow rope, cable, pole 
or extension, either on board or attached in any manner to the summer 
flounder trawler. Exceptions to the TED requirement for summer flounder 
trawlers are provided in paragraph (d)(2)(iii)(B) of this section.
    (2) Any approved hard TED or special hard TED installed in a summer 
flounder trawl must be installed in a TED extension. The TED extension 
is a cylindrical piece of webbing distinct from the main trawl's body, 
wings, codend, and any other net extension(s). The TED extension must 
be constructed of webbing no larger than 3.5 inch (8.9 cm) stretched 
mesh. The TED extension must extend at least 24 inches (61.0 cm) but 
not more than 36 inches (91.4 cm) forward of the leading edge of the 
TED and aft of the trailing edge of the grid.
* * * * *

PART 223 [Amended]

    3. Figure 6 to part 223 is added to read as follows:

BILLING CODE 3510-22-F

[[Page 55864]]

FIGURE 6 to Part 223--TED Extension in Summer Flounder Trawl
[GRAPHIC] [TIFF OMITTED] TR15OC99.001


[FR Doc. 99-27012 Filed 10-14-99; 8:45 am]
BILLING CODE 3510-22-C