[Federal Register Volume 65, Number 250 (Thursday, December 28, 2000)]
[Notices]
[Pages 82447-82451]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 00-33076]


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DEPARTMENT OF TRANSPORTATION

Coast Guard

[USCG-2000-7206]


Voluntary Guidelines on Recreational Activities To Control the 
Spread of Zebra Mussels and Other Aquatic Nuisance Species

AGENCY: Coast Guard, DOT.

ACTION: Notice of issuance.

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SUMMARY: The Coast Guard makes available this final version of the 
voluntary guidelines for persons engaged in water-related recreational 
activities (e.g., boating and fishing) to help control the spread of 
aquatic nuisance species (ANS). The Coast Guard must issue these 
guidelines per the recommendations prepared by the Aquatic Nuisance 
Species Task Force.

DATES: These voluntary guidelines are effective January 29, 2001.

ADDRESSES: The Docket Management Facility maintains the public docket 
for this notice. Comments and material received from the public are a 
part of this docket and are available for inspection or copying at room 
PL-401, on the Plaza level of the Nassif Building, 400 Seventh Street 
SW., Washington, DC, between 9 a.m. and 5 p.m., Monday through Friday, 
except Federal holidays. You may also find this docket on the Internet 
at http://dms.dot.gov.

FOR FURTHER INFORMATION CONTACT: For questions on this notice or 
associated guidelines, call Lieutenant junior grade JoAnne Hanson, 
Project Manager, Office of Operating and Environmental Standards (G-
MSO), Coast Guard, telephone, 202-267-2079. For questions on viewing 
materials in the docket, call Dorothy Beard, Chief, Dockets, Department 
of Transportation, telephone 202-366-9329.

SUPPLEMENTARY INFORMATION:

What Is the Regulatory History of the Voluntary Guidelines?

    On April 13, 2000, we published a notice and request for comments 
entitled ``Voluntary Guidelines on Recreational Activities to Control 
the Spread of Zebra Mussels and Other Aquatic Nuisance Species'' in the 
Federal Register (65 FR 19953). We received four comment letters. On 
May 4, 2000, we published a correction notice in the Federal Register 
(65 FR 25980) citing minor editorial corrections to the notice and 
request for comments. No public hearing was requested and none was 
held.

What Comments Did the Coast Guard Receive in Response to Its Notice 
and Request for Comments and What Changes, if Any, Were Made to the 
Voluntary Guidelines as a Result of These Comments?

    We received four comment letters in response to the notice and 
request for comments. Each of the four comment letters expresses 
support for the proposed guidelines, including the distribution of 
educational and outreach materials.
    One comment proposes that the Coast Guard work with associations, 
educational institutions, or agencies that conduct education and 
outreach on recreational activities as part of their overall mission.
    As a member of the Aquatic Nuisance Species Task Force (ANSTF), the 
Coast Guard is represented on the Task Force's Communication, Education 
and Outreach Committee. This committee was established to provide the 
Task Force with a way to support the congressional mandates through 
outreach campaigns. The committee is currently working on creating a 
National Aquatic Nuisance Species Campaign and these voluntary 
guidelines will play

[[Page 82448]]

an important role in that effort. The Coast Guard will also rely on the 
Coast Guard Auxiliary to promote these guidelines to the boating public 
through their boating safety courses.
    One comment suggests clarifying the term ``natural resource 
managers and others'' used in the guidelines under the heading ``What 
activities do the voluntary guidelines address and what are the 
recommended procedures?''
    The Coast Guard intends for the various county, regional, and State 
agencies to use the voluntary guidelines as basic guidelines to 
incorporate into their own aquatic nuisance species materials, which 
they can distribute in their areas, including specific points of 
contact.
    One comment suggests that the Coast Guard purchase public service 
television spots to televise the educational videos. The comment also 
suggests that we make the guidelines available on the Coast Guard's web 
page.
    As noted previously, as a member of the ANSTF's Communication, 
Education, and Outreach Committee, the Coast Guard is involved in the 
development of a national campaign to highlight these voluntary 
guidelines. A variety of outreach materials are being developed to 
publicize the guidelines. We expect televised publicity to be 
considered as well. The guidelines are currently available on the Coast 
Guard's web page.
    One comment suggests using a species other than the spiny water 
flea to illustrate the efficacy of drying because the spiny water 
flea's resting stage eggs, which it produces seasonally, can tolerate 
drying indefinitely, although the adult female cannot.
    In response to this comment, the ANSTF Recreational Activities 
Committee (RAC) has recommended that we change the wording at the end 
of paragraph (e), entitled ``Boating,'' under the ``Pathway-Specific 
Guidelines'' heading to read as follows: ``* * * reduce the risk * * * 
'' instead of ``* * * prevent the transport * * *'' We have made this 
wording change.
    One comment suggests that, in the first bullet under ``Never do the 
following,'' under ``Generic Guidelines,'' we remove the word ``from'' 
and add the words ``to or from.'' The sentence would then read as 
follows: ``Never transport plants, animals, mud, or water to or from 
lakes, rivers, wetlands, and coastal waters.'' We have revised the 
wording under the ``Generic Guidelines'' based on this suggestion.

Why Is the Coast Guard Issuing Voluntary Guidelines?

    To comply with the National Invasive Species Act of 1996 (NISA), we 
are issuing voluntary guidelines for recreational activities to control 
the spread of zebra mussels and other Aquatic Nuisance Species (ANS). 
These guidelines will be explained in pamphlets, videos, and other 
types of outreach materials.
    The voluntary guidelines in this notice are based on the ones 
drafted and recommended by the RAC. The guidelines developed by the 
Committee are available in the docket and may be accessed on the 
Internet at http://dms.dot.gov.

What Are Aquatic Nuisance Species (ANS)?

    ANS are organisms introduced into non-native habitats and are often 
freed from the natural predators, parasites, pathogens, and competitors 
that have kept them in check. Once established, these organisms can 
displace native species; they can impede municipal, industrial, and 
private water-intake systems; and they can degrade aquatic ecosystems.
    The introduction of most ANS is the work of humans. In some cases, 
this is intentional, but, in many, it is accidental. In addition to 
overland transport of boats, which has long been identified as a key 
dispersal pathway, there are many others. The other human activities 
that can disperse ANS include angling, scuba diving, and waterfowl 
hunting.
    Establishing these final voluntary guidelines will help to promote 
good habits that will control the spread of ANS. Surveys have shown 
that participants in recreational activities will take necessary 
precautions if they know what to do. Conversely, they will not take 
precautions unless they know what to do.

What Is the Purpose of the Voluntary Guidelines?

    The voluntary guidelines will give the public clear, concise 
information on how to avoid the transport of ANS. These voluntary 
guidelines provide specific procedures that individuals engaged in the 
corresponding recreational activity can follow so they will not 
accidentally transport ANS.

What Activities Do the Voluntary Guidelines Address and What Are 
the Recommended Procedures?

    These voluntary guidelines address the following water-related 
recreational activities: Scuba diving; waterfowl hunting; harvesting of 
bait by recreational anglers; angling; boating; operating seaplanes; 
and operating personal watercraft. These voluntary guidelines are 
intended to assist natural resource managers and others involved in 
educating individuals who participate in these recreational activities 
about the problems associated with the spread of ANS in the United 
States.

Voluntary Guidelines for Recreational Activities To Control the 
Spread of Zebra Mussels and Other Aquatic Nuisance Species

Generic Guidelines

    Some guidelines are appropriate for any recreational activity 
associated with water. The generic preventive-guidelines that follow 
apply to most recreational activities occurring in marine and inland 
waters. In addition to these guidelines, States and provinces may 
include specific laws and guidelines for their areas.
    Always do the following:
     Always inspect equipment (in the broadest sense, e.g., 
boats, planes, trailers, decoy anchors, SCUBA gear, and lures) for 
visible plants and animals before transporting.
     Always remove visible plants and animals from equipment 
(expel plants, animals, and water from internal parts).
     Always drain water from equipment before transporting.
     Always clean equipment that has been in infested waters 
before placing it in other waters (see the ``Pathway-specific 
guidelines'' section for specific methods).
     Always report questionable species to your resource agency 
for identification. Information is available from many sources about 
identification of ANS; however, specimens are needed to confirm 
sightings. Many jurisdictions have different rules regarding possession 
and transport. Always ask your local natural resources management 
agency for instructions.
    Avoid the following:
     Transporting plants, animals, mud, or water to or from 
lakes, rivers, wetlands, and coastal waters.
     Releasing animals or plants (e.g., aquarium species, bait, 
or water garden plants) into the wild unless you release them into the 
same waterbody or location where the species came from.

Pathway-Specific Guidelines

    These guidelines cover recreational activities that are potential 
pathways for transferring ANS. Individuals engaged in these activities 
should follow these guidelines to help prevent the spread of ANS. You 
should note that States and

[[Page 82449]]

provinces may add to these voluntary guidelines their own related laws 
and guidelines, if any, regarding transport or possession of ANS.
(a) Scuba Diving
    You can unintentionally transport ANS, such as the zebra mussel, 
spiny water flea, and Eurasian water milfoil, from one body of water to 
another on your scuba-diving gear. You should take precautions to 
reduce the risk of spreading these unwanted species, especially when 
diving in different waters on the same or consecutive days.
    Many scuba divers believe that zebra mussels have benefited the 
sport by improving visibility in the waters they inhabit. They soon 
learn, however, that geological formations and shipwrecks that once 
attracted divers are encrusted with layers of zebra mussels, which 
obscure these objects. The harm to the environment, the fisheries, and 
industrial, municipal, and private water intakes far outweighs any 
benefit.
    Any objects removed from the water have the potential of 
introducing ANS to new waters. By adhering to the guidelines that 
follow, you can help prevent the spread of ANS when you scuba dive, and 
you can help protect the environment from the harmful impacts of these 
species. Guidelines:
     Inspect your equipment.
     Remove any plants, mud, or animals that are visible before 
leaving all waters.
     Drain water from buoyancy compensator (bc), regulator, 
tank boot, and any other equipment that may hold water before leaving 
all waters.
     ANS can survive for a period of time on wet scuba gear or 
in water. Therefore, do at least one of the following:
    (1) Dry your suit and all equipment completely before diving in 
different waters, and rinse the inside of your bc with hot or salted 
water as described in items (2) and (3), which immediately follow.
    (2) Submerge and wash your suit and equipment, and rinse the inside 
of your bc with hot water (at least 40  deg.C or 104  deg.F).
    (3) Submerge and wash your suit and equipment in a tub or tote 
containing salted water (\1/2\ cup of salt dissolved in one gallon of 
water); rinse the inside of your bc with the salted solution; and rinse 
your equipment with clean water.
(b) Waterfowl Hunting
    Nonindigenous ANS such as the zebra mussel, purple loosestrife, and 
Eurasian water milfoil can damage habitat for fish, waterfowl, and 
other wildlife. Waterfowl hunters should be aware that it is possible 
to inadvertently spread ANS from one lake or wetland to another via 
boats, motors, trailers, and decoys. Waterfowlers should assume that 
any fragments of aquatic plants could be potentially harmful and should 
not be transported from one wetland, lake, river, or coastal area to 
another. In addition, zebra mussels and their microscopic larvae can 
attach to aquatic plants. If fragments of these plants are transported, 
they can inadvertently transport zebra mussels to other waters. By 
following the guidelines on recreational activities, you can help 
prevent the spread of ANS via waterfowl hunting. Guidelines:
    Before the hunting season--
     Switch to elliptical, bulb-shaped, or strap anchors on 
decoys, which avoid collecting submerged and floating aquatic plants; 
or
     If boats are moored in waters infested with zebra mussels, 
use the following tips to remove or kill zebra mussels or other aquatic 
animals and plants that might be in or on your boat:
    (1) Remove any visible zebra mussels from the boat and wash and 
rinse the boat with hot water; or
    (2) Spray the boat with high-pressure water; or
    (3) Dry all parts of the boat for at least 5 days before placing it 
into another waterbody.
    After hunting--
     Inspect waders or hip boots; remove aquatic plants; and, 
where possible, rinse mud from them before leaving the waters;
     Remove aquatic plants, animals, and mud that are attached 
to decoy lines or anchors; and
     Drain the water from boats before transporting to other 
waters.
    Between hunting trips--
     Inspect equipment for any aquatic plants, animals, and mud 
not removed after hunting; remove and dispose of them on land away from 
the waters; and
     Follow the guidelines for boaters in paragraph (e).
(c) Recreational Anglers' Harvest of Live Bait (Non-Commercial Harvest)
    The guidelines that follow apply to the non-commercial harvesting 
of live bait by recreational anglers.
    Nonindigenous species can lodge in nets and other equipment used to 
harvest baitfish and can be unintentionally transported into non-
infested waters. Some species can survive up to 2 weeks out of water 
and remain viable when dislodged into another waterbody. Non-target ANS 
species like ruffe and round goby, as well as fragments of aquatic 
nuisance plants, such as hydrilla or Eurasian water milfoil, can be 
harvested along with target baitfish species. If such species are 
transferred to non-infested waters, they can have harmful effects on 
native fish populations. To help prevent the transfer of these species, 
you should conduct the procedures that follow during or after the 
harvest of live bait for personal use.
    Guidelines:
     Inspect harvested live bait for non-target species, and 
remove them where harvested.
     Always dispose of unwanted live bait on land (away from 
contact with waters) before leaving the waters. Never release live bait 
into another body of water or move aquatic plants or animals from one 
waterbody into a different waterbody.
     Remove all aquatic plants from boats, trailers, nets, or 
other equipment while on shore before leaving the water-body access.
     Before reusing nets, roll out, hand clean, and dry them.
     Drain water from boats (cooling stem of motors) and 
equipment (bilge pump, tubs, live wells, etc.) before leaving any 
waterbody access.
     Never use water from infested waters to transport live 
bait to other waters. In many States and provinces, live bait harvested 
from designated infested waters is illegal. Check with your local State 
natural resource agency before you collect live bait.
     In areas where harvest of bait from infested waters is 
legal, avoid using the same equipment in infested and non-infested 
waters. Some aquatic nuisance species once removed from infested waters 
can survive up to two weeks in a moist environment. By drying surfaces 
where they can be lodged or attached, you can substantially reduce the 
risk of transporting them in boats and equipment.
     Rinse all equipment, including boats and trailers, with 
tap water and dry them for as long as possible, but for at least 5 days 
before re-use, especially in other waters. Before re-use, you should 
roll out nets, hand clean them, and dry them for a minimum of 10 days, 
or freeze them for 2 days.
     The following applies to disinfection, specific to zebra 
mussels, of equipment that is difficult to treat with drying and 
washing methods (use these methods away from the waterbody):
    (1) As an added equipment treatment, a dip of 100 percent vinegar 
for 20 minutes can kill small zebra mussels and may be effective 
against other ANS.
    (2) Treatment with other chemicals such as a 1-percent solution of 
table salt

[[Page 82450]]

for 24 hours can be as effective as a dip of vinegar.
    The recipes provided in the following table are for a 1-percent 
solution of table salt (sodium chloride) treatment in water.\1\
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    \1\ Adapted from ``Fisheries Scientist's Pocket Reference'' 
booklet by Iowa Chapter of the American Fisheries Society, 1991, by 
Doug Jensen, University of Minnesota Sea Grant Program.

------------------------------------------------------------------------
                                                               Cups of
                      Gallons of water                          salt *
------------------------------------------------------------------------
5..........................................................        \2/3\
10.........................................................       1\1/4\
25.........................................................            3
50.........................................................       6\1/4\
100........................................................     12\2/3\
------------------------------------------------------------------------
* Based on 312 g per cup.

(d) Angling
    The introduction of ANS can cause significant changes in freshwater 
and marine ecosystems. Populations of prey and game fish can be 
significantly harmed by the presence of species such as the sea 
lamprey, Asian swamp eel, Chinese carp, and zebra mussel. Some aquatic 
nuisance plants (e.g., hydrilla, Eurasian water milfoil, and water 
hyacinth) may limit the viable fishing area of inland waters. You can 
help prevent the transfer of ANS by following the guidelines in this 
section whenever you engage in angling.

Guidelines

     Dispose of unwanted live bait on land before leaving the 
waterbody. Never release live bait into a different body of water or 
move aquatic plants or animals from one waterbody to another.
     Wash and dry your boat, tackle, downriggers, float tube, 
waders, and other equipment to remove or kill harmful species that were 
not visible at the boat launch.
     Inspect all fish caught using seines, dipnets, or other 
types of netting; remove and properly discard all non-target species.
(e) Boating
    ANS, such as the zebra mussel, spiny water flea, and Eurasian water 
milfoil, can be unintentionally transported through water-related 
recreation activities because some ANS can survive many days out of 
water. If you are a water recreationalist (watercraft users), there are 
some important actions you can take to reduce the risk of transport of 
ANS from one waterbody to another.

Guidelines

     Before leaving all waters, inspect your boat (sailboats 
check centerboard and bilgeboard wells, and keel boats check the 
rudder-post area), trailer (check axles, runners, lights, and rollers), 
and other boating equipment (check anchors, water-skis, or other tow 
lines), and remove any plants, animals, or mud that are visible (see 
diagram 1).
     Drain water from the motor, livewell, bilge, and transom 
wells while on land and before leaving all waters.
     Wash and dry your boat, tackle, fishing lines, 
downriggers, trailer, and other boating equipment to kill harmful 
species that were not visible at the boat launch. You can do this on 
your way home or once you arrive home.
     Before you transport to other waters, do one of the 
following:
    (1) Rinse your boat and boating equipment with hot (greater than 40 
 deg.C or 104  deg.F) tap water.
    (2) Spray your boat and trailer with high-pressure water.
    (3) Dry your boat and equipment for at least 5 days.
    [GRAPHIC] [TIFF OMITTED] TN28DE00.009
    
    For your information, the U.S. Fish and Wildlife Service, in 
conjunction with Canadian officials and other partners, are 
implementing the 100th Meridian Initiative, which focuses on preventing 
the westward spread of zebra mussels and other ANS by boat inspections 
and by dissemination of posters, brochures, and other information about 
ANS. There are many other State and Federal initiatives focusing on 
controlling the spread of ANS. Consult your local Fish and Wildlife 
Service facility or other appropriate State or Federal natural resource 
management agency for additional information.
(f) Seaplanes
    Many ANS, such as the zebra mussel and Eurasian water milfoil, can 
be unintentionally transported from one waterbody to another on the 
floats of seaplanes. Therefore, it is important to clean the aircraft 
to remove ANS before traveling, rather than after landing at new 
locations. In addition, it is important for you to incorporate the 
procedures listed here into the operation of your seaplane. However, 
plane safety is the first priority when considering and following these 
guidelines.
    Guidelines:
    Before entering the aircraft--
     Inspect and remove aquatic plants from the floats, wires 
or cables, and water rudders;
     Pump floats, which may contain infested water; and
     If moored in waters infested by zebra mussels for extended 
periods, check the transom, chine, bottom, wheel wells, and step area 
of floats (see diagram 2). If zebra mussels are present on the floats, 
you can use (any) one of the following methods to remove or kill them:
    (1) Wash the floats with hot water.
    (2) Spray the floats with high-pressure water.
    (3) Dry all parts of the floats for at least 5 days. Before 
takeoff--

[[Page 82451]]

     Avoid taxiing through heavy surface growths of aquatic 
plants before takeoff;
     Raise and lower water rudders several times to clear off 
plants. This will also minimize cable stretch and improve the 
effectiveness of the rudders for steering.
    After takeoff--
     Raise and lower water rudders several times to free 
fragments of aquatic plants while over the waters you are leaving or 
while over land; and
     If aquatic plants remain visible on floats or water 
rudders, return to the lake and remove the plants.
    Storage or mooring--
     Remove aircraft from the water, as is often done at 
seaplane bases, and allow all parts of the floats to dry. A few days of 
hot, summer temperatures will kill adult zebra mussels (longer drying 
times of up to 10 days are required to kill adult mussels during cool, 
humid weather); and *
     Aircraft moored for extended periods in zebra-mussel-
infested waters may have zebra mussels attached to the floats and 
should be cleaned regularly. In remote locations, where zebra mussels 
are present, but where there are no provisions for drying, spraying, or 
treating the floats with hot water, the best option available for 
preventing the spread of the mussels is to hand-clean the submerged 
portions of floats with a scrub brush and to physically remove adult 
mussels. (Aircraft moored for extended periods in zebra-mussel-infested 
waters may have zebra mussels attached to the floats and should be 
cleaned regularly.)
[GRAPHIC] [TIFF OMITTED] TN28DE00.010

(g) Personal Watercraft
    Personal watercraft that have jet-drive systems require some extra 
precautions to avoid ANS. A pump pulls water in through an opening 
under the craft, and the impeller (an internal propeller) forces water 
out, moving the craft forward. ANS can easily get lodged in the jet-
drive system and get transported if the watercraft is taken from one 
waterbody to another. A small piece of Eurasian water milfoil, or other 
ANS, caught in the impellers can infest a new lake or river. Zebra 
mussels can survive in excess water in the jet drive and spread to 
other waters. By applying the following guidelines, you can help 
prevent the transfer of ANS via your personal watercraft.
    Guidelines:
    In the water--
     Avoid running the engine through aquatic plants near the 
boat access; and
     Push or winch the watercraft up on the trailer without 
running the engine.
    On the trailer--
     After you pull the watercraft from the water, start the 
engine for 5 to 10 seconds to blow out any excess water and vegetation. 
(The dark, damp, enclosed area of the impeller provides an ideal 
environment for aquatic nuisance plants to survive.); and
     After the engine stops, pull plants out of the steering 
nozzle. Inspect your trailer and any other sporting equipment for 
fragments of aquatic plants, and remove them before you leave the 
access area.
    After trailering and before re-use--
     Wash and dry your watercraft and equipment to kill or 
remove harmful species that you did not see at the boat launch. You can 
do this on your way home or once you arrive home. Choose one of the 
following methods of disinfection before transporting to another 
waterbody:
    (1) Rinse your watercraft and other equipment with hot (greater 
than 40  deg.C or 104  deg.F) tap water.
    (2) Spray your watercraft and trailer with high-pressure water.
    (3) Dry your watercraft and equipment for at least 5 days.

    Dated: December 19, 2000.
R.C. North,
U.S. Coast Guard, Assistant Commandant for Marine, Safety and 
Environmental Protection.
[FR Doc. 00-33076 Filed 12-27-00; 8:45 am]
BILLING CODE 4910-15-P