[Federal Register Volume 67, Number 55 (Thursday, March 21, 2002)]
[Rules and Regulations]
[Pages 13098-13101]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 02-6772]


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DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

50 CFR Parts 222 and 223

[Docket 020313057-2057-01; I.D. 031102E]
RIN 0648-AP91


Sea Turtle Conservation; Restrictions to Fishing Activities

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: NMFS is enacting a seasonally-adjusted gear restriction by 
closing the Mid-Atlantic Exclusive Economic Zone (EEZ) waters to 
fishing with gillnets with a mesh size larger than 8 inch (20.3 cm) 
stretched mesh, starting on March 15, 2002. The purpose of this action 
is to reduce the impact of the large-mesh gillnet fisheries on 
endangered and threatened species of sea turtles primarily from the 
monkfish fishery which has previously demonstrated a high sea turtle 
bycatch and mortality rate. The areas restricted to fishing with 
gillnets larger than 8 inch stretched mesh and the times are as 
follows: Waters north of 33 deg.51.0' N (North Carolina/South Carolina 
border at the coast) and south of 35 deg.46.0' N (Oregon Inlet)--at all 
times; waters north of 35 deg.46.0' N (Oregon Inlet) and south of 
36 deg.22.5' N (Currituck Beach Light, NC)--from March 16 through 
January 14; waters north of 36 deg.22.5' N (Currituck Beach Light, NC) 
and south of 37 deg.34.6' N (Wachapreague Inlet, VA)--from April 1 
through January 14; waters north of 37 deg. 34.6' N (Wachapreague 
Inlet, VA) and south of 37 deg.56.0' N (Chincoteague, VA)--from April 
16 through January 14. Waters north of 37 deg.56.0' N (Chincoteague, 
VA) will not be affected by this rule. NMFS also intends to publish a 
permanent rule establishing these seasonal restrictions and is seeking 
comments on this interim final rule.

DATES: This interim final rule is effective on March 15, 2002 through 
240 days after March 15, 2002. Comments on this interim final rule are 
requested and must be postmarked or transmitted by facsimile by 5 p.m., 
Eastern Standard Time, on June 19, 2002. Comments transmitted via e-
mail or the Internet will not be accepted.

ADDRESSES: Send written comments on this interim final rule to the 
Chief, Endangered Species Division, Office of Protected Resources, 
NMFS, 1315 East-West Highway, Silver Spring, MD 20910. Comments may 
also be sent via fax to 301-713-0376, Attn: Chief, Endangered Species 
Division, Office of Protected Resources. Comments will not be accepted 
if submitted via e-mail or the Internet. Copies of the Environmental 
Assessment (EA) prepared for this interim final rule may also be 
requested at the same address.

FOR FURTHER INFORMATION CONTACT: David M. Bernhart (ph. 727-570-5312, 
fax 727-570-5517, e-mail [email protected]), or Barbara A. 
Schroeder (ph. 301-713-1401, fax 301-713-0376, e-mail 
[email protected]).

SUPPLEMENTARY INFORMATION: 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 
populations of green turtles in Florida and on the Pacific coast of 
Mexico, which are listed as endangered.
    Under the ESA and its implementing regulations, taking sea 
turtles--even incidentally--is prohibited, with exceptions for 
threatened species identified in 50 CFR 223.206. The incidental take of 
endangered species may be authorized only by an incidental take 
statement provided or an incidental take permit issued pursuant to 
section 7 or 10 of the ESA.

Background

    Beginning in 1995, sea turtle strandings off North Carolina 
dramatically increased during April and May, particularly near the area 
between Hatteras Inlet and Oregon Inlet. This new stranding pattern 
continued and intensified throughout the rest of the 1990's, and North 
Carolina sea turtle strandings grew to record levels. Increasing 
strandings coincided with increasing effort in the monkfish gillnet 
fishery, which first began off North Carolina in 1995. In April and May 
2000, the largest-ever fisheries-related stranding event occurred: 280 
sea turtles, 275 of them threatened loggerhead sea turtles, stranded in 
two short periods. Four of the carcasses were still entangled in 
gillnet gear with a larger than 8 inch stretched mesh size. Three 
fisheries were active in offshore waters the week prior to the 
strandings: Hook-and-line fishing for mackerel, bluefish gillnetting, 
and monkfish gillnetting. The mesh sizes of the gear recovered with the 
stranded turtles were only consistent with gillnets for monkfish. There 
was no evidence that the turtles had been hooked, and the nature of the 
strandings were not consistent with other possible causes. Satellite 
sea surface temperature information allowed NMFS to reconstruct the 
likely times and locations of the sea turtle mortality. Gillnetting for 
dogfish and monkfish was occurring in those times and places.
    These fisheries deploy thousands of yards/meters of gillnets with 
larger than 8 inch stretched mesh and have very long soak times, 
ranging from overnight to several days. In order to prevent further sea 
turtle deaths, on May 12, 2000, NMFS restricted an area along eastern 
North Carolina and Virginia to fishing with large-mesh gillnets with a 
stretched mesh size of 6 inches (15.24 cm) or greater for a 30-day 
period through a temporary rule (65 FR 31500, May 18, 2000). After the 
large mesh closure was in effect, no additional mass stranding events 
occurred in North Carolina. However, the monkfish fishery in North 
Carolina was over by the time the closure went into effect.
    The closure also reduced the monkfish gillnetting effort off the 
coast of Virginia, and there was a large reduction in strandings in 
2000 (Mansfield et al., 2001). Due to the large-mesh gillnet closure, 
as well as the new

[[Page 13099]]

trip limits imposed by the FMP on May 1, 2000, there was also a 
reduction in fisheries landings reported within this region.
    Monkfish gillnets--12-inch mesh, tied-down, anchored gillnets; up 
to 4 nautical miles of net per boat; and soak times from 24 to 120 
hours--pose a lethal threat to sea turtles, if they are fished in times 
and places where turtles occur. In the early spring, sea turtles, 
particularly loggerheads, mass along warm-water fronts off the North 
Carolina coast and migrate northward as warming water temperatures 
allow. Based on the information regarding fishing activity prior to the 
strandings, large mesh gillnets set along these warm-water fronts were 
the most likely cause of the catastrophic levels of sea turtle 
mortality seen in North Carolina in 2000. Even with the high level of 
strandings, the great majority of turtle carcasses probably never 
stranded due to the strong offshore currents of the Gulf Stream, and 
the actual turtle mortality was much higher than the strandings 
suggest.

2001 Events

    NMFS considered implementing closures of the monkfish gillnet 
fishery in the Mid-Atlantic in 2001 to prevent the same level of turtle 
mortality from recurring. Implementation of the Year 2 Monkfish Fishery 
Management Plan (FMP) measures as of May 1, 2000, limited monkfish 
gillnet vessels in the Southern Fishery Management Area to a trip limit 
of 300 lb (tail weight) per Day-at-Sea (DAS). In addition, NMFS placed 
observers on nearly 100 percent of the monkfish gillnet trips out of 
North Carolina and Virginia ports in spring 2001. Further, NMFS 
published a rule (66 FR 28842, May 25, 2001) that provided authority to 
close the monkfish gillnet fishery if the observers documented turtle 
takes greater than the authorized level in the incidental take 
statement (ITS) issued with the December 21, 1998, biological opinion 
on the monkfish fishery.
    NMFS, in the meantime, had also reinitiated consultation (pursuant 
to section 7 of the ESA) on the FMP, primarily as the result of 
concerns over right whale takes in fixed gear. Consultation was also 
reinitiated because the ITS for sea turtles was exceeded in 1999. NMFS 
also analyzed the information on sea turtle strandings and the effect 
of the FMP's daily landings limits and limitations on total days at sea 
(DAS). Beginning May 1, 2000, for the area off North Carolina and 
Virginia, monkfish gillnet vessels were limited to 300 pounds of tails 
landed per day and 40 DAS per year. Beginning May 1, 2002, the DAS 
would be reduced to zero (i.e., no directed gillnet fishing for 
monkfish), but up to ten unused DAS could be carried over. NMFS issued 
a new biological opinion on the fishery on June 14, 2001, concluding 
that the fishery, as managed under the FMP, was not likely to 
jeopardize the continued existence of any species of sea turtle. 
Incidental take was authorized, with a reduced take level after April, 
2002 and zero take anticipated after April, 2003. The opinion expressly 
considered the reduction in daily landings limits and DAS and 
considered that the FMP's restrictions would greatly reduce the effort 
off North Carolina and Virginia, because vessels from northern ports 
would have little incentive to travel to the south for the limited 
fishing opportunity.
    The June 14, 2001 biological opinion's analysis of the fishery's 
behavior in spring 2001 proved to be correct: Only seven sink gillnet 
vessels targeting monkfish fished off North Carolina in 2001, compared 
to 33 sink gillnet vessels that landed monkfish in North Carolina in 
2000. The sea turtle mortality was also greatly reduced: there were 
only 11 turtle strandings in eastern North Carolina (zone 35) for April 
and May, total, compared to the close to 300 turtles that stranded in 
April and May 2000. Four sea turtle takes were observed in the monkfish 
gillnet fishery off North Carolina and Virginia in spring 2001. Not 
only were there fewer vessels fishing gillnets in 2001, those vessels 
apparently fished farther to the north and in colder water, compared to 
2000, and thus avoided sea turtle takes.

Changes to the FMP

    On August 14, 2001, the U.S. District Court for the District of 
Rhode Island found the provisions in the FMP that established the trip 
limits for gillnetters to be unlawful. NMFS filed a motion with the 
court, asking for reconsideration and asking that the FMP's trip limits 
remain in place until a new FMP could be developed. The U.S. District 
Court denied this motion on February 15, 2002. The effect of this 
ruling is that the gillnet daily limits have now increased from 300 
pounds to 1500 or 1000 pounds (based on permit type). In addition, the 
New England and Mid-Atlantic Fishery Management Councils voted on 
February 8, 2002, to reverse the FMP's elimination of gillnet DAS after 
April, 2002, allowing continued gillnetting with a 550 or 450 pounds of 
tails per DAS (based on permit type). NMFS is reviewing this council 
action for possible approval. Note that all trip limits discussed in 
this interim rule, and any past changes to those trip limits are 
specific only to the Southern Fishery Management Area of the monkfish 
fishery. The Northern Fishery Management Area has no trip limits and 
these have not been changed by the court order or new Council action. 
The reinitiation of ESA Section 7 consultation on the monkfish fishery 
is underway.

Threat to Sea Turtles

    The fishery off North Carolina will be closed from February 15 
through March 15, under provisions of the Mid-Atlantic Harbor Porpoise 
Take Reduction Plan. However, because of the recent court ruling, if no 
turtle protective measures are in place in the fishery and effort 
returns to 2000 levels, there is every reason to believe that sea 
turtle mortality off the southern Mid-Atlantic will return to the very 
high levels of the late 1990's and possibly the disastrous levels of 
2000. The court's ruling and the Council's action undo the effort 
limitation measures that were important factors in the June 14, 2001 
no-jeopardy biological opinion. Under a 1500- or 1000-pound daily 
limit, NMFS believes that effort off North Carolina will return to the 
levels seen in 2000. In 2000, there were no trip limits, but the 
average landings per trip were only 764 pounds, so the 1500- or 1000-
pound limit will have little to no effect in reducing effort, and, 
based on past effort, vessels from other states are expected to travel 
to North Carolina to target monkfish. The other protective measures of 
2001 are no longer in place. The temporary framework rule that depended 
on 100 percent observer coverage, with closure after the observers 
documented take greater than that authorized in the ITS, has expired. 
NMFS does not have funds or observers to achieve 100 percent coverage 
again, certainly not at the much higher levels of fishing effort that 
are anticipated. The level of incidental take authorized in the June 
14, 2001 opinion is very low (6 loggerheads, 1 green, 1 Kemp's ridley, 
1 leatherback sea turtle) and would probably be exceeded quickly if 
monkfish gillnets are set near warm water boundaries when turtles are 
making their northward migration. NMFS believes that emergency action 
is warranted to prevent the violation of the incidental take statement 
of the opinion and to reduce the potential for a serious impact to 
turtle populations. The 275 loggerheads that stranded in North Carolina 
in spring 2000 were probably disproportionately made up of individuals 
from the northern subpopulation of loggerheads, a subpopulation that 
has been of

[[Page 13100]]

particular concern, for example, in the 2001 Biological Opinion on the 
Atlantic pelagic longline fishery management plan, that concluded that 
fishery was likely to jeopardize loggerhead and leatherback sea 
turtles.

Seasonally-Adjusted Closure of Large-Mesh Gillnet Fishing in the 
Mid-Atlantic

    By this interim final rule, NMFS is enacting, effective 
immediately, seasonally-adjusted gear restrictions by closing the Mid-
Atlantic EEZ waters to fishing with gillnets with a mesh size larger 
than 8 inch (20.3 cm) stretched mesh to protect migrating sea turtles. 
Although the monkfish gillnet fishery currently uses 12 inch (30.5 cm) 
stretched mesh as their primary gear type, the potential exists for the 
utilization of smaller mesh gillnets for monkfish. The 8 inch cutoff 
size as mentioned above is, therefore, being enacted in this rule. NMFS 
considered banning smaller mesh sizes but fishing for monkfish with 
gillnets with less than 8 inch mesh is impractical and banning smaller 
mesh sizes would interfere with the prosecution of other fisheries that 
have been shown to have minimal impact on sea turtles.
    The areas restricted to fishing with gillnets larger than 8 inch 
stretched mesh and the times are as follows: waters north of 
33 deg.51.0' N (North Carolina/South Carolina border at the coast) and 
south of 35 deg.46.0' N (Oregon Inlet)--at all times; waters north of 
35 deg.46.0' N (Oregon Inlet) and south of 36 deg.22.5' N (Currituck 
Beach Light, NC)--from March 16 through January 14; waters north of 
36 deg.22.5' N (Currituck Beach Light, NC) and south of 37 deg.34.6' N 
(Wachapreague Inlet, VA)--from April 1 through January 14; waters north 
of 37 deg.34.6' N (Wachapreague Inlet, VA) and south of 37 deg.56.0' N 
(Chincoteague, VA)--from April 16 through January 14. Waters north of 
37 deg.56.0' N (Chincoteague, VA) will not be affected by this rule. 
NMFS also intends to publish a permanent rule establishing these 
seasonal restrictions and is seeking comments on this interim final 
rule. The restricted areas include all EEZ waters within the stated 
boundaries. Because of the evidence from past stranding events, 
particularly the large stranding event in April and May 2000, NMFS 
concludes that the large mesh gillnet fishery in the Mid-Atlantic 
takes, including to capture and kill, numerous endangered and 
threatened sea turtles during their spring migration. NMFS is taking 
this action to prevent further mortalities and other takes of listed 
species in this fishery. The timing of the restrictions is based upon 
an analysis of sea surface temperatures for the above areas. Sea 
turtles are known to migrate into and through these waters when the sea 
surface temperature is 11 degrees Celsius or greater. The January 15 
date for the reopening of the areas north of Oregon Inlet (35 deg.46.0' 
N) to the large-mesh gillnet fishery is also based upon the 11 degree 
Celsius threshold and is consistent with the seasonal boundary 
established for the summer flounder fishery-sea turtle protection area 
(50 CFR 223.206(d)(2) (iii)(A)).
    The actions implemented by this interim final rule are expected to 
impact approximately 20-25 monkfish gillnet vessel owners and 
operators. Five alternatives were evaluated in the EA prepared for this 
interim final rule, including a status quo or ``no action'' 
alternative. For a description and analysis of the alternatives, 
readers should refer to the EA available at the address listed above.
    The total cost to the monkfish fishery is expected to be minimal. 
The primary effect of this interim final rule will be to establish 
restrictions in an area which is not heavily utilized by the fishery 
and to set required dates for the northward movement of the fishery up 
through 37 deg.56.0' N (Chincoteague, VA) in order to avoid sea turtle 
interactions. However, based on vessel trip reporting (VTR) data from 
May 1998 through April 2001, the Virginia and North Carolina trips make 
up a small part of the total effort in the monkfish sink gillnet 
fishery. Together they represent 5.1 percent of the monkfish tail 
weight, 0.9 percent of the liver weight, and 4.1 percent of the total 
gillnet trips. The fishery normally migrates northward anyway as it 
follows the monkfish movements. This rule does not prevent or limit 
fishermen from moving north of 37 deg.56.0' N (Chincoteague, VA) to 
prosecute the fishery, although the small number of vessels in this 
fishery that are based in North Carolina and Virginia would have extra 
fuel costs that would impact profitability. This rule does not impact 
the available DAS or catch limits established under previous 
regulations.

Request for Comments

    NMFS is considering issuing these seasonally-adjusted gear 
restrictions as a final rule. Written public comments on this interim 
final rule must be postmarked or transmitted by facsimile by 5 p.m., 
Eastern Standard Time, on June 19, 2002.

Classification

    This action has been determined to be not significant for purposes 
of Executive Order 12866.
    The Assistant Administrator has determined that this interim final 
rule is necessary to respond to the emergency created by the changes to 
the federal monkfish fishery, changes which may lead to unauthorized 
takes in violation of the terms and conditions of the June 14, 2001 
Biological Opinion. This interim final rule is consistent with the ESA 
and other applicable laws. Section 4(b)(7) of the ESA provides that the 
requirements of 5 U.S.C. 553 of the Administrative Procedure Act do not 
apply to regulations when there is an emergency posing a significant 
risk to wildlife (16 U.S.C. 1533(b)(7)).
    This interim final rule will be effective for 240 days. If NMFS 
determines to adopt this interim final rule permanently, NMFS will 
publish the rule in the Federal Register by winter 2002. If significant 
changes to this interim final rule are needed, NMFS will first publish 
a proposed rule and seek additional public comment. If NMFS determines 
that the rule is no longer necessary, NMFS will withdraw this interim 
final rule. NMFS is providing notice of these regulations to the states 
of North Carolina and Virginia, as required by section 4(b)(7)(B) of 
the ESA. NMFS regulations, which were developed and adopted after full 
notice and comment, give the Assistant Administrator the authority to 
take emergency actions when the need arises. 50 CFR 223.206(d)(4).
    The AA also finds good cause to waive the requirements for prior 
notice and an opportunity for public comment, for this interim final 
rule, pursuant to 5 U.S.C. 553(b)(B), as such procedures would be 
impracticable and contrary to the public interest. The recent court 
ruling, described above, increased gillnet DAS limits from 300 pounds 
to either 1500 or 1000 pounds, based upon permit type. It is expected 
that, in light of these higher trip limits, the level of fishing effort 
occurring after March 16, 2002, when the fishery off North Carolina 
will open, until May 1, 2002, when gillnet DAS will be reduced to zero 
under the FMP, will cause a significant increase in risk of mortality 
to sea turtles. As such, any delay in implementation of this interim 
final rule would prevent NMFS from meeting its obligations under the 
ESA to prevent such harm.
    The New England and Mid-Atlantic Fishery Management Councils have 
voted to reverse the FMP's elimination of gillnet DAS after April, 
2002, and to

[[Page 13101]]

allow continued gillnetting with a 550 or 450 pounds of tails per DAS 
(based on permit type). Should NMFS decide to follow the recommendation 
of the Council, emergency protection for sea turtles would remain 
necessary after May 1, 2002. However, should NMFS not follow the 
recommendation of the Council, NMFS will consider this in determining 
whether to adopt the interim final rule as a final rule.
    This interim final rule will be effective for 240 days. If NMFS 
determines to adopt this interim final rule permanently, NMFS will 
publish the rule in the Federal Register by winter 2002. If significant 
changes to this interim final rule are needed, NMFS will first publish 
a proposed rule and seek additional public comment. If NMFS determines 
that the rule is no longer necessary, NMFS will withdraw this interim 
final rule.
    For the reasons stated above, the AA finds good cause under both 
section 4(b)(7) of the ESA and 5 U.S.C. 553(d)(3) not to delay the 
effective date of this rule for 30 days. This restriction has been 
announced on the NOAA weather channel, in newspapers, and other media.
    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 the Regulatory 
Flexibility Act, 5 U.S.C. 601 et seq., are inapplicable.
    The AA has prepared an Environmental Assessment for this interim 
final rule. Copies of the EA are available (see ADDRESSES).

List of Subjects in 50 CFR Part 223

    Administrative practice and procedure, Endangered and threatened 
species, Exports, Imports, Reporting and record-keeping requirements.

    Dated: March 15, 2002.
Rebecca Lent,
Deputy Assistant Administrator for Regulatory Programs, National Marine 
Fisheries.

    For the reasons set out in the preamble, 50 CFR parts 222 and 223 
are amended to read as follows:

PART 222--GENERAL ENDANGERED AND THREATENED MARINE SPECIES

    1. The authority citation for part 222 continues to read as 
follows:

    Authority: 16 U.S.C. Sec. 1531 et seq.; 16 U.S.C. Sec. 742a et 
seq.; 31 U.S.C. Sec. 9701 et seq.


    2. In Sec. 222.102, Definitions, add after the definition for 
``Four-seam, tapered-wing trawl'' and before the definition for ``Gulf 
Area'', the following regulatory definition to read as follows:


Sec. 222.102  Definitions.

* * * * *
    Gillnet means a panel of netting, suspended vertically in the water 
by floats along the top and weights along the bottom, to entangle fish 
that attempt to pass through it.
* * * * *

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 et seq.

    2. In Sec. 223.206, paragraph (d) introductory text is suspended 
and paragraph (d)(8) and (e) are added to read as follows:


Sec. 223.206  Exceptions to prohibitions relating to sea turtles.

* * * * *
    (d) * * *
    (8) Restrictions applicable to large-mesh gillnet fisheries in the 
mid-Atlantic region. No person may fish (including, but not limited to, 
setting, hauling back, or leaving in the ocean) with, or possess any 
gillnet with a stretched mesh size larger than 8 inches (20.3 cm), 
unless all gillnets are covered with canvas or other similar material 
and lashed or otherwise securely fastened to the deck or the rail, and 
all buoys larger than 6 inches (15.24 cm) in diameter, high flyers, and 
anchors are disconnected. This restriction is effective starting on 
March 15, 2002, in the Atlantic Exclusive Economic Zone (as defined in 
50 CFR 600.10) during the following time periods and in the following 
areas:
    (i) Waters north of 33 deg.51.0' N (North Carolina/South Carolina 
border at the coast) and south of 35 deg.46.0' N (Oregon Inlet) at any 
time;
    (ii) Waters north of 35 deg.46.0' N (Oregon Inlet) and south of 
36 deg.22.5' N (Currituck Beach Light, NC) from March 16 through 
January 14;
    (iii) Waters north of 36 deg.22.5' N (Currituck Beach Light, NC) 
and south of 37 deg.34.6' N (Wachapreague Inlet, VA) from April 1 
through January 14; and
    (iv) Waters north of 37 deg.34.6' N (Wachapreague Inlet, VA) and 
south of 37 deg.56.0' N (Chincoteague, VA) from April 16 through 
January 14.
* * * * *
    (e) Exception for incidental taking. The prohibitions against 
taking in Sec. 223.205(a) do not apply to the incidental take of any 
member of a threatened species of sea turtle (i.e., a take not directed 
toward such member) during fishing or scientific research activities, 
to the extent that those involved are in compliance with all applicable 
requirements of paragraphs (d)(1) through (d)(8) of this section, or in 
compliance with the terms and conditions of an incidental take permit 
issued pursuant to paragraph (a)(2) of this section.

[FR Doc. 02-6772 Filed 3-15-02; 5:02 pm]
BILLING CODE 3510-KA-P