[Federal Register Volume 71, Number 73 (Monday, April 17, 2006)]
[Proposed Rules]
[Pages 19675-19681]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: E6-5686]


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DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

50 CFR Parts 222 and 223

[Docket No. 060405097-6097-01; I.D. 033006E]
RIN 0648-AU10


Sea Turtle Conservation; Modification to Fishing Activities

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

ACTION: Proposed rule; request for comments.

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SUMMARY: NMFS proposes to require that any offshore pound net leader in 
the Virginia waters of the mainstem Chesapeake Bay, south of 37[deg] 
19.0' N. lat. and west of 76[deg] 13.0' W. long., and all waters south 
of 37[deg] 13.0' N. lat. to the Chesapeake Bay Bridge Tunnel at the 
mouth of the Chesapeake Bay, and the James and York Rivers downstream 
of the first bridge in each tributary during the period of May 6 
through July 15 meet the definition of a modified pound net leader. 
Existing regulations prohibit all offshore pound net leaders in that 
area during that time frame. An offshore pound net leader refers to a 
leader with the inland end set greater than 10 horizontal feet (3 m) 
from the mean low water line. This action, taken under the Endangered 
Species Act of 1973 (ESA), responds to new information generated by 
gear research. It is intended to conserve sea turtles listed as 
threatened or endangered while enabling fishermen to use leaders, an 
important component of pound net gear, during the regulated period.

DATES: Comments on this action are requested, and must be received at 
the appropriate address or fax number (see ADDRESSES) by no later than 
5 p.m., eastern daylight time, on May 2, 2006.

ADDRESSES: Written comments on this action may be submitted on this 
proposed rule, identified by RIN 0648-AU10, by any one of the following 
methods:
    (1) E-mail: [email protected]. Please include the RIN 
0648-AU10 in the subject line of the message.
    (2) Federal eRulemaking Portal: http://www.regulations.gov. Follow 
the instruction on the website for submitting comments.
    (3) NMFS/Northeast Region Website: http://www.nero.noaa.gov/nero/regs/com.html Follow the instructions on the website for submitting 
comments.
    (4) Mail: Mary A. Colligan, Assistant Regional Administrator for 
Protected Resources, NMFS, Northeast Region, One Blackburn Drive, 
Gloucester, MA 01930, ATTN: Sea Turtle Conservation Measures, Proposed 
Rule
    (5) Facsimile (fax): 978-281-9394, ATTN: Sea Turtle Conservation 
Measures, Proposed Rule
    Copies of the Draft Environmental Assessment/Regulatory Impact 
Review and documents cited in the proposed rule can be obtained from 
http://www.nero.noaa.gov/nero/regs/com.html or by writing to Pasquale 
Scida, NMFS, Northeast Region, One Blackburn Drive, Gloucester, MA 
01930.

FOR FURTHER INFORMATION CONTACT: Pasquale Scida (ph. 978-281-9208, fax 
978-281-9394), or Therese Conant (ph. 301-713-2322, fax 301-427-2522).

SUPPLEMENTARY INFORMATION:

Background

    All sea turtles that occur in U.S. waters are listed as either 
endangered or threatened under the ESA. Kemp's ridley (Lepidochelys 
kempii), leatherback (Dermochelys coriacea), and hawksbill 
(Eretmochelys imbricata) sea turtles are listed as endangered. 
Loggerhead (Caretta caretta) and green (Chelonia mydas) sea 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, the term ``take'' means to harass, harm, 
pursue, hunt, shoot, wound, kill, trap, capture, or collect or attempt 
to engage in any such conduct. The term incidental take refers to 
takings of endangered and threatened species that result from, but are 
not the purpose of, an otherwise lawful activity. Under the ESA and its 
implementing regulations, taking endangered or threatened sea turtles - 
even incidentally - is prohibited, with exceptions identified in 50 CFR 
223.206 for threatened sea turtles. The incidental take of endangered 
species may only legally be authorized by an incidental take statement 
or an incidental take permit issued pursuant to section 7 or 10 of the 
ESA, respectively.

Spring Sea Turtle Stranding Event

    High strandings of threatened and endangered sea turtles are 
documented on Virginia beaches each spring and early summer. The 
magnitude of this stranding event has increased in recent years. During 
May and June, total reported Virginia sea turtle strandings were 84 in 
1995, 85 in 1996, 164 in 1997, 183 in 1998, 129 in 1999, 161 in 2000, 
256 in 2001, 180 in 2002, 312 in 2003, and 192 in 2004. In 2005, 
preliminary data indicate that 113 dead sea turtles stranded on 
Virginia beaches during May and June, with most of these occurring 
during the latter half of June. Strandings have also been elevated in 
July, generally the first half of the month. From 1996 to 2005, 
strandings were generally elevated during the first half of July, with 
an average of 21 strandings documented from July 1 to 15. In the latter 
half of July, strandings typically decrease; from 1996 to 2005, an 
average of 10 strandings were documented from July 16 to 31. In 2005, 
strandings were the lowest recorded since the mid-1990's.
    Most of the documented stranded sea turtles in Virginia have been 
threatened

[[Page 19676]]

loggerheads, but endangered Kemp's ridley, green and leatherback sea 
turtles have also stranded. For example, preliminary strandings data 
from 2005 indicate that 85 percent of strandings were loggerheads, 10 
percent were Kemp's ridley, 4 percent were leatherback and green were 
0.5 percent. The majority of stranded turtles have been of the 
juvenile/immature life stage. Most of the stranded turtles reported in 
Virginia during the spring have been moderately to severely decomposed. 
For instance, in the spring of 2005, approximately 85 percent of the 
strandings were either moderately to severely decomposed, compared to 
approximately 1 percent that were fresh dead. The ability to conduct 
necropsies is compromised by the condition of the stranded animals, and 
severely decomposed turtles are not usually necropsied. The majority of 
the stranded turtles that were examined by necropsy in the spring of 
previous years had relatively good fat stores and full stomachs/
digestive tracts, suggesting that the animals were in good health prior 
to their death.
    While the distribution of sea turtle strandings in Virginia varies 
slightly from year to year, there has been a high concentration of 
stranded sea turtles found along the Eastern shore in recent years. A 
cause and effect relationship between pound net interactions and high 
spring strandings cannot be statistically derived based on the 
available data. However, NMFS has documented that fishing with pound 
net leaders results in lethal and non-lethal take of sea turtles. NMFS 
concluded that this constituted sufficient evidence to form the basis 
for past and current restrictions on pound net leaders.

Sea Turtle and Pound Net Interactions

    Sea turtle entanglements in and impingements on pound net leaders 
have been documented in Virginia waters of Chesapeake Bay since the 
early 1980's (Bellmund et al., 1987; Lutcavage 1981). On June 17, 2002, 
based upon the best available information on sea turtle and pound net 
interactions at the time, NMFS issued an interim final rule that 
prohibited the use of all pound net leaders measuring 12 inches (30.5 
cm) and greater stretched mesh and all pound net leaders with stringers 
in the Virginia waters of the mainstem Chesapeake Bay and portions of 
the Virginia tributaries from May 8 to June 30 each year (67 FR 41196). 
Included in this interim final rule was a year-round requirement for 
fishermen to report all interactions with sea turtles in their pound 
net gear to NMFS within 24 hours of returning from a trip, and a year-
round requirement for pound net fishing operations to be observed by a 
NMFS-approved observer if requested by the Northeast Regional 
Administrator. The interim final rule also established a framework 
mechanism by which NMFS could make changes to the restrictions and/or 
their effective dates on an expedited basis in order to further protect 
sea turtles by responding to new information, such as the entanglement 
of a sea turtle in a pound net leader. As a result of sea turtle 
entanglements observed during the spring of 2003, NMFS issued a 
temporary final rule requiring removal of all pound net leaders 
throughout the Virginia Chesapeake Bay and portions of the tributaries 
from July 16 to July 30, 2003, pursuant to the framework mechanism of 
the 2002 interim final rule (68 FR 41942, July 16, 2003).
    In 2002 and 2003, NMFS monitored pound nets in Virginia. The 2002 
and 2003 monitoring results documenting sea turtle entanglement in and 
impingement on pound net leaders with less than 12 inches (30.5 cm) 
stretched mesh represented new information not previously considered in 
prior assessments of the Virginia pound net fishery. Entanglements in 
and impingements on these leaders appeared to be more of a significant 
problem than originally assessed. Based upon the results of pound net 
monitoring in 2002 and 2003, as well as additional information about 
the behavior of sea turtles in Chesapeake Bay, NMFS had sufficient 
evidence to conclude that further rulemaking was necessary.
    NMFS issued a final rule on May 5, 2004 (69 FR 24997), that 
prohibited the use of offshore pound net leaders in a part of the 
Virginia Chesapeake Bay defined in that rule, which for purposes of 
this proposed rule will be called ``Pound Net Regulated Area I.'' The 
May 2004 rule also placed restrictions on nearshore pound nets in Pound 
Net Regulated Area I and on all pound nets employed in the remainder of 
the Virginia Chesapeake Bay, which for purposes of this proposed rule 
will be call ``Pound Net Regulated Area II.'' According to the 2004 
rule, nearshore pound nets in Pound Net Regulated Area I and all pound 
nets in Pound Net Regulated Area II must have leaders with mesh size 
less than 12 inches (30.5 cm) stretched mesh and may not employ 
stringers. The 2004 final rule also modified the framework mechanism.
    The previous monitoring efforts represent a minimum record of sea 
turtle entanglement and impingement. Sea turtles may be found 
throughout the water column, and green, Kemp's ridley and loggerhead 
sea turtles are primarily benthic foragers. Mansfield and Musick (2003) 
found that seven sea turtles (6 loggerheads and one Kemp's ridley), 
tracked in the Virginia Chesapeake Bay from May 22 to July 17, 2002, 
dove to maximum depths ranging from approximately 13.1 ft (4 m) to 41 
ft (12.5 m). While the percentage of time sea turtles spend at the 
surface compared to at depth is still being clarified, sea turtles may 
be found throughout the water column. As pound net leader 
characteristics are generally consistent from the top of the leader to 
the bottom and monitoring the entire net profile has not been conducted 
full-time on each leader, it is probable that more sea turtles are in 
pound net leaders than are observed or reported.
    NMFS continued to monitor pound nets during the 2004 spring season. 
In 2004, NMFS characterized 88 nets, 51 of which were active. Out of 
1,190 surveys conducted, 4 sea turtles were observed to have been 
impinged or entangled in pound net leaders. Out of the four turtles 
that interacted with the pound net gear, one was released alive. Three 
of the four observed interactions occurred and were documented through 
the modified pound net leader experiment.

Modified Pound Net Leader Experiment

    In 2004 and 2005, NMFS implemented a coordinated research program 
with pound net industry participants and other interested parties to 
develop and test a modified pound net leader design with the goal of 
eliminating or reducing sea turtle interactions while retaining an 
acceptable level of fish catch. The modified pound net leader design 
used in the experiment consisted of a combination of mesh and stiff 
vertical lines. The mesh size was equal to or less than 8 inches (20.3 
cm). The mesh was positioned at a depth that was no more than one-third 
the depth of the water. The vertical lines were 5/16 inch (0.8 cm) in 
diameter strung vertically at a minimum of every 2 feet (61 cm) and 
attached to a top line. The vertical lines rose from the top of the 
mesh up to a top line to which they were attached. The stiffness of the 
vertical lines in the modified leader was achieved by coating them with 
paint in 2004 and using painted, twisted, hard lay lines in 2005. The 
design was based on the premise that the sea turtles would pass through 
the upper two-thirds of the leader, through the stiff vertical lines, 
without entangling in or impinging on the leader. The modified pound 
net leader was tested from May 17 to June

[[Page 19677]]

27 in 2004 and May 6 to June 29 in 2005. In 2004, four offshore pound 
nets were alternatively rigged with modified and unmodified leaders and 
two nearshore pound nets were rigged with unmodified leaders. 
Unmodified leaders are leaders that consist only of mesh from the 
seabed to the top line near the surface of the water. All pounds net 
leaders were monitored twice daily using visual and side scan sonar 
inspection to detect sea turtle interactions. In addition to the twice 
daily inspection of leaders for turtle interactions, a total of 61 
pound net heart catch observations were made during the study period. 
In 2005, four offshore pound nets were tested. The nets were rigged 
alternatively with modified and unmodified leaders and were monitored 
twice daily for sea turtle interactions using visual and side scan 
sonar. A total of 54 pound net heart catch observations were conducted 
in addition to twice daily monitoring of the pound net leaders. The 
control leaders were removed from the water partway through the 
experiment in 2005 because the total number of sea turtles permitted to 
be taken during the research had been exceeded.
    During the 2-year study, the modified leader was found to be 
effective in reducing sea turtle interactions as compared to the 
unmodified leader. The final results of the 2004 study found that out 
of eight turtles impinged on or entangled in the leaders of pound nets, 
seven were impinged on or entangled in an unmodified leader. One 
leatherback turtle was found entangled in a modified leader. In 
response to the leatherback entanglement, the gear was further modified 
by increasing the stiffness of the vertical lines for the 2005 
experiment. Results from the 2005 experiment indicate that no sea 
turtles were found impinged on or entangled in the modified gear. In 
2005, 15 turtles entangled in the leaders of unmodified leaders, and no 
turtles were found impinged on or entangled in modified leaders. 
Furthermore, results of the finfish catch comparison suggest that the 
modified leader caught similar quantities and size compositions as the 
unmodified leader. Although the unmodified leaders had to be pulled out 
of the water partway through the experiment in 2005, NMFS believes that 
the results of the modified leader experiment provide sufficient new 
information and justification to propose allowing the use of the 
modified leader.
    It is possible that sea turtles may interact with the lower leader 
mesh because sea turtles in the lower Chesapeake Bay commonly make 
dives of over 40 minutes during the day (Byles 1988; Mansfield and 
Musick 2003b, 2004) and dive depths range from approximately 13.1 ft (4 
m) to 41 ft (12.5 m) (Mansfield and Musick, 2003). However, all 
interactions during the 2005 modified leader experiment were recorded 
in the top portion of unmodified leaders (at depths within the top two-
thirds of the depth of mean lower low water). No interactions were 
observed in the modified leader.

Impact of High Mortality on Sea Turtle Populations

    The documented interactions between sea turtles and pound net 
leaders, as well as the annual Virginia spring strandings, are of 
concern for the following reasons: (1) all of the entangled, impinged 
and stranded animals are listed as either endangered or threatened 
under the ESA, which means these species are in danger of extinction or 
likely to become endangered in the foreseeable future; (2) the level of 
strandings in Virginia has been elevated the last 7 years, and there is 
no reason to believe that high spring strandings will abate in future 
years without continued monitoring, research and regulatory action; (3) 
sea turtles have been observed entangled in unmodified leaders; (4) sea 
turtles have been observed impinged on unmodified leaders by the 
current and impingements are likely to continue to occur on unmodified 
small mesh leaders in areas where impingements have been documented; 
(5) the greatest percentage of Virginia spring strandings in recent 
years has been along the southern tip of the Eastern shore, where a 
large number of pound nets are located; (6) approximately 50 percent of 
the Chesapeake Bay loggerhead foraging population is composed of the 
northern subpopulation, a subpopulation that may be declining; and (7) 
most of the stranded turtles have been juveniles, a life stage found to 
be critical to the long term survival of the species.
    Most loggerheads in U.S. waters come from one of five genetically 
distinct nesting subpopulations. The largest loggerhead subpopulation, 
the South Florida subpopulation, occurs from 29[deg]N. lat. on the east 
coast of Florida to Sarasota on the west coast and shows recent 
increases in numbers of nesting females based upon an analysis of 
annual surveys of all nesting beaches. However, a more recent analysis 
limited to nesting data from the Index Nesting Beach Survey program 
from 1989 to 2002, a period encompassing index surveys that are more 
consistent and more accurate than surveys in previous years, has shown 
no detectable trend (B. Witherington, Florida Fish and Wildlife 
Conservation Commission, pers. comm., 2002). The northern 
subpopulation, which nests from northeast Florida through North 
Carolina, is much smaller, and nesting numbers are stable or declining 
(TEWG 2000). Genetic studies indicate that approximately one-half of 
the juvenile loggerheads inhabiting Chesapeake Bay during the spring 
and summer are from the smaller, northern subpopulation (TEWG, 2000; 
Bass et al., 1998; Norrgard, 1995). Approximately 3,800 nesting females 
are estimated for the northern subpopulation of loggerhead sea turtles 
(TEWG, 2000). The impact of the high level of mortality experienced by 
loggerhead turtles each spring off Virginia on the population's ability 
to recover is of significant concern. The northern subpopulation 
produces 65 percent males, while the South Florida subpopulation is 
estimated to produce 20 percent males (NMFS SEFSC, 2001). As males do 
not appear to show the same degree of site fidelity as females, the 
high proportion of males produced in the northern subpopulation may be 
an important source of males for all loggerheads inhabiting the 
Atlantic. The loss of the male contribution from the northern 
subpopulation may restrict gene flow and result in a loss of genetic 
diversity to the loggerhead population as a whole. The loss of females 
from the northern subpopulation may preclude future reproduction, 
reducing the likelihood of both future survival and recovery of the 
northern subpopulation of loggerheads. Given the vulnerability of these 
subpopulations to chronic impacts from human-related activities, the 
high level of spring sea turtle mortality in Virginia must be reduced 
to help ensure that these subpopulations of loggerheads will recover. 
One way to reduce such mortality is to reduce sea turtle mortality 
caused by pound net leaders.
    Most of the turtles stranding in Virginia waters during the spring 
are of the juvenile/immature life stages. The specific age at maturity 
for most sea turtles is unknown; the age of maturity for loggerheads 
occurs from approximately 21-35 years (TEWG, 2000). Studies have 
concluded that sea turtles must have high annual survival as juveniles 
and adults to ensure that sufficient numbers of animals survive to 
reproductive maturity to maintain stable populations (Crouse et al., 
1987; Crowder et al., 1994; Crouse, 1999). Given their long maturation 
period, relatively small decreases in annual survival rates of both 
juvenile and adult loggerhead sea turtles may destabilize the 
population, thereby potentially

[[Page 19678]]

reducing the likelihood of survival and recovery of the population. As 
such, the historical high level of mortality observed in Virginia plus 
the increase in loggerhead mortality documented during the last several 
years may negatively affect the recovery of the loggerhead population.

The Proposed Action

    The boundaries of the two regulated areas defined in the 2004 rule 
remain the same for this action. This action proposes a non-
substantive, technical change to the definition of the regulated areas 
that would merely apply titles to the areas to reduce confusion. Pound 
Net Regulated Area I means Virginia waters of the mainstem Chesapeake 
Bay, south of 37[deg] 19.0' N. lat. and west of 76[deg] 13.0' W. long., 
and all waters south of 37[deg] 13.0' N. lat. to the Chesapeake Bay 
Bridge Tunnel (extending from approximately 37[deg] 05' N. lat., 
75[deg] 59' W. long. to 36 55' N. lat., 76[deg] 08' W. long.) at the 
mouth of the Chesapeake Bay, and the portion of the James River 
downstream of the Hampton Roads Bridge Tunnel (I-64; approximately 
36[deg] 59.55' N. lat., 76[deg] 18.64' W. long.) and the York River 
downstream of the Coleman Memorial Bridge (Route 17; approximately 
37[deg] 14.55' N. lat, 76[deg] 30.40' W. long.). Pound Net Regulated 
Area II means Virginia waters of the Chesapeake Bay outside of 
Regulated Area I defined above, extending to the Maryland-Virginia 
State line (approximately 37 55' N. lat., 75 55' W. long.), the Great 
Wicomico River downstream of the Jessie Dupont Memorial Highway Bridge 
(Route 200; approximately 37[deg] 50.84' N. lat, 76[deg] 22.09' W. 
long.), the Rappahannock River downstream of the Robert Opie Norris Jr. 
Bridge (Route 3; approximately 37[deg] 37.44' N. lat, 76[deg] 25.40' W. 
long.), and the Piankatank River downstream of the Route 3 Bridge 
(approximately 37[deg] 30.62' N. lat, 76[deg] 25.19' W. long.) to the 
COLREGS line at the mouth of the Chesapeake Bay.
    The boundaries of the regulated areas defined in the current 
regulations were determined based on a combination of the locations of 
observed sea turtle entanglements in or impingements on pound net 
leaders and the area in which sea turtles may face a greater risk of 
entanglement in or impingement on pound net leaders due to 
environmental conditions. Previous research and monitoring indicate 
that geographic location, which is a proxy for other environmental 
factors such as temperature and current, may play an important role in 
the risk of sea turtle entanglement and impingement.
    As previously mentioned, this proposed rule does not set forth any 
substantive changes to the boundaries of the two regulated areas that 
have already been established in existing regulations. The only 
substantive change proposed through this action is to replace the 
existing prohibition on all offshore pound net leaders in Pound Net 
Regulated Area I during the period of May 6 through July 15 with a 
provision that requires any offshore pound net leader set in Pound Net 
Regulated Area I during the period of May 6 through July 15 to meet the 
definition of a modified pound net leader. In other words, if a 
fisherman chooses to use an offshore pound net leader in Pound Net 
Regulated Area I from May 6 through July 15, that offshore pound net 
leader must meet the definition of a modified pound net leader.
    A modified pound net leader is defined as a pound net leader that 
is: (1) affixed to or resting on the sea floor; (2) made of a lower 
portion of mesh and an upper portion of only vertical lines such that 
(a) the mesh size is equal to or less than 8 inches (20.3 cm) stretched 
mesh; (b) at any particular point along the leader the height of the 
mesh from the seafloor to the top of the mesh must be no more than one-
third the depth of the water at mean lower low water directly above 
that particular point; (c) the mesh is held in place by vertical lines 
that extend from the top of the mesh up to a top line, which is a line 
that forms the uppermost part of the pound net leader; (d) the vertical 
lines are equal to or greater than 5/16 inch (0.8 cm) in diameter and 
strung vertically at a minimum of every 2 feet (61 cm); and (e) the 
vertical lines are hard lay lines.
    The specifications for the experiments in 2004 and 2005 did not 
indicate that the height of the mesh must be no more than one-third the 
depth of the water at mean lower low water. Instead, the specifications 
only indicated that the height of the mesh is restricted to one-third 
the depth of the water. However, for purposes of rulemaking, it is 
important to indicate a common reference point against which the depth 
of the water may be measured, such as mean lower low water. During the 
preparation of this proposed rule, NMFS staff confirmed with two 
participants in the experiment that the modified pound net leaders they 
used were constructed in, or close to, that manner. Therefore, NMFS 
proposes to state in the definition of a modified pound net leader that 
the height of the mesh from the seafloor at any particular point must 
be no more than one-third the depth of the water at mean lower low 
water at any time during the tidal cycle throughout the regulated 
period. For example, if a modified leader is set in water that ranges 
from 10 m to 30 m deep at mean lower low water, the mesh panel would be 
10 m high at the deep end and would taper to 3.3 m high at the shallow 
end.
    In the definition of ``modified pound net leader,'' NMFS proposes 
to state that the vertical lines must be hard lay lines. ``Hard lay'' 
is a technical term used by the cordage industry to describe line that 
is purposefully made to be stiff. Line is usually made stiff by 
choosing a material that is stiff, twisting the line material, and/or 
providing a coating to the line such as paint. Given the various 
factors that contribute to the degree of stiffness in the line, NMFS is 
seeking comment on how better to define 'hard lay' and establish a 
standard for fishermen to use in the pound net leader. Furthermore, 
while the vertical lines used in the modified leader design meet the 
definition of a ``stringer'' in a pound net leader, they cannot be 
treated separately from the overall design and construction of the 
modified leader (i.e., line specification, distance apart, and dropped 
mesh) and therefore NMFS has chosen to refer to them just as ``vertical 
lines.'' However, because these vertical lines do meet the definition 
of ``stringer,'' and stringers are prohibited under existing 
regulations in nearshore leaders in Pound Net Regulated Area I and all 
leaders in Pound Net Regulated Area II, the modified pound net leader 
would also be prohibited from being used in nearshore leaders in Pound 
Net Regulated Area I and all leaders in Pound Net Regulated Area II 
under the proposed action.
    According to this proposed rule, if a fisherman chooses to use an 
offshore pound net leader in Pound Net Regulated Area I at any time 
from 12:01 a.m. local time on May 6 through 11:59 p.m. local time on 
July 15 each year that offshore pound net leader must meet the 
definition of a modified pound net leader. Existing mesh size and 
stringer restrictions on nearshore pound net leaders in the area to be 
called Pound Net Regulated Area I and on all pound net leaders in the 
area to be called Pound Net Regulated Area II would remain in place and 
are not affected substantially by this proposed rule. The year round 
reporting and monitoring requirements for this fishery and the 
framework mechanism under the existing regulations also remain in 
effect. This action would be implemented under the authority of the ESA 
sections 4(d) and 11(f) and is appropriate to conserve threatened and 
endangered sea turtles and to enforce the provisions of the ESA, 
including the

[[Page 19679]]

prohibition on takes of endangered sea turtles.
    NMFS plans to continue analyzing the potential natural and 
anthropogenic sources of sea turtle mortality in Virginia waters. As 
part of this larger initiative, NMFS intends to continue to closely 
monitor sea turtle stranding levels and other fisheries active in the 
Chesapeake Bay and the Atlantic Ocean off Virginia. Additionally, in 
the near future, NMFS plans to evaluate the impacts of all fishing gear 
types on sea turtles throughout the Atlantic and Gulf of Mexico, as 
part of the Strategy for Sea Turtle Conservation and Recovery in 
Relation to Atlantic Ocean and Gulf of Mexico Fisheries (NMFS, 2001).
    NMFS is seeking public comments on requiring the use of the 
modified pound net leader design in any pound net leader set within the 
geographic range of the fishery in Virginia waters (non-preferred 
alternative 2) during the period of May 6 through July 15. NMFS is 
seeking comment and information on the definition of 'hard lay' to 
ensure that a minimum degree of stiffness is achieved in the modified 
pound net leader. NMFS will consider comments on this topic as well as 
new developments in the scientific information base during the 
preparation of the final rule for this action.

Classification

    This proposed rule has been determined to be not significant for 
purposes of Executive Order 12866.
    NMFS has prepared an initial regulatory flexibility analysis that 
describes the economic impact this proposed rule, if adopted, would 
have on small entities. A description of the action, why it is being 
considered, and the legal basis for this action are contained at the 
beginning of the preamble and in the SUMMARY section. A summary of the 
analysis follows:
    The fishery affected by this proposed rule is the Virginia pound 
net fishery in the Chesapeake Bay. The proposed action would require 
any offshore pound net leader set in Pound Net Regulated Area I on May 
6 through July 15 each year to meet the definition of a modified pound 
net leader. Non-preferred alternative 1 (NPA 1) would maintain the 
current regulations, including a prohibition on the use of offshore 
pound net leaders in Pound Net Regulated Area I, and would prohibit 
leaders with stretched mesh greater than or equal to 12 inches (30.5 
cm) and leaders with stringers in the remainder of the Virginia 
Chesapeake Bay during the period of May 6 through July 15 each year. 
Non-preferred alternative 2 (NPA 2) would require any pound net leader 
used during the period of May 6 through July 15 in either Pound Net 
Regulated Area I or Pound Net Regulated Area II to be a modified pound 
net leader. Non-preferred alternative 3 (NPA 3) is similar to the 
proposed action, but would require the modified pound net leader design 
to be used in any offshore leader, any nearshore leader would still be 
required to use stretched mesh less than 12 inches (30.5 cm), and any 
stringers would be prohibited on nearshore leaders.
    The two areas of the Virginia Chesapeake Bay designated as Pound 
Net Regulated Areas I and II differ from the areas used in the economic 
analysis due to data limitations. The VMRC pound net fishery data is 
linked to water bodies, which do not map directly to the Pound Net 
Regulated Areas. To highlight this difference, an alternative 
nomenclature is used, specifically ``upper'' and ``lower'' Bay. 
Landings and revenues for the lower Bay are biased upward based upon 
the data limitations.
    According to the 2004 VMRC data, there are 21 harvesters actively 
fishing pound nets from May 6 to July 15 within the regulated part of 
Chesapeake Bay, with 5 harvesters located in the lower portion of 
Chesapeake Bay and 16 harvesters located in the upper portion of the 
Virginia Chesapeake Bay. These 21 harvesters fish approximately 29 
pound nets in the upper portion of the Virginia Chesapeake Bay (= 16 
harvesters x 1.8 pound nets/harvester) and 17 pound nets in the lower 
portion of the Virginia Chesapeake Bay (=5 harvesters x 3.4 pound nets/
harvester). Based on 2000 to 2004 data, annual landings per harvester 
were 267,076 pounds (120,184 kg) in the upper portion of the Virginia 
Chesapeake Bay and 206,269 pounds (92,821 kg) in the lower portion of 
the Virginia Chesapeake Bay. Annual revenues per harvester were $55,772 
and $79,503 in the upper and lower region, respectively. From May 6 to 
July 15, landings per harvester were 100,849 pounds (45,382 kg) in the 
upper region and 98,339 pounds (44,253 kg) in the lower region. 
Estimated revenues per harvester for that period were $20,323 and 
$40,187 in the upper and lower region, respectively.
    Of the 17 pound nets fished by 5 fishermen in the lower Bay from 
May 6 to July 15, 41 percent of these nets (7) would be classified as 
having offshore leaders and would fall within Pound Net Regulated Area 
I and would be subject to the proposed gear modification. For offshore 
fishermen in the lower Bay, there would be considerable net benefits 
from being allowed to fish using the modified leader during the 
regulated period. Based on 2004 data, out of the five fishermen that 
would be affected, three fishermen (with two nearshore nets and one 
offshore net each) would recapture approximately $13,408 of revenues 
foregone under the current regulations (16.9 percent of annual 
revenues), while two fishermen (with two nearshore nets and two 
offshore nets each) would see an increase of $26,816 in revenues (33.7 
percent of annual revenues). The remainder of fishermen in the upper 
Bay (16) would be subject to status quo regulations (current 
regulations, less than 12'' stretched mesh and no stringers) and would 
not incur any additional costs to comply with the proposed action.
    NPA 1, the no action alternative, would maintain status quo 
conditions in the upper Bay, and would not result in additional costs 
or benefits. NPA 2 and NPA 3 would require any pound net leader to use 
the modified pound net leader design in a larger geographic area as 
compared to the proposed action. As such, the impacts of those non-
preferred alternatives would include the cost of modifying leaders in 
the upper Bay area as compared to the proposed action and NPA 1.
    NPA 2 would impact all pound net fishermen in the Virginia 
Chesapeake Bay during the regulated period. For lower Bay fishermen, 
NPA 2 would result in an increase in net revenues, as the opportunity 
to fish offshore pound net leaders during the regulated period more 
than off-sets the costs of modifying their leaders. For the five lower 
Bay fishermen the increase in net revenues would range from $9,548 to 
$22,956, or between 12.0 percent and 28.9 percent of annual revenues. 
The total net increase in revenues for the lower Bay would be $74,556 
(=[3 harvesters x $9,548]+[2 harvesters x $22,956]). For upper Bay 
fishermen there would only be costs to modify their leaders, as 
compared to existing regulations (NPA 1). The costs would range from 
$2,002 to $4,004 to fabricate and install the modified leaders, or 3.6 
percent to 7.2 percent of annual revenues, with a total cost of $57,770 
(=[4 harvesters x $3,932]+[3 harvesters x $2,002]+[9 harvesters x 
$4,004]). Based on the 2004 Northeast Fisheries Science Center gear 
survey, 85 percent of the upper Bay pound nets were offshore, for a 
total of 25 offshore pound nets and 4 nearshore pound nets. For the 
four fishermen with one offshore and one nearshore pound net the total 
cost of NPA 2 over current regulations is $3,932 (=$2,002+$1,930) or 
7.1 percent of annual revenues

[[Page 19680]]

(=$3,932/$55,772). For the three fishermen with only a single offshore 
pound net the cost is $2,002 or 3.6 percent of annual revenues 
(=$2,002/$55,772). For the nine fishermen with two offshore pound nets 
the total cost is $4,004 or 7.2 percent of annual revenues (=$4,004/
$55,772). Overall the increase in net revenues for offshore fishermen 
in the lower Bay would off-set the increase in costs for other 
fishermen to modify their leaders on all other pound nets. The industry 
would see a net increase in revenue of $16,786, or 0.8 percent of 2004 
pound net revenues (=$0.017M/$2.187M). However, as explained above, 
NMFS recognizes that NPA 2 would impose costs on the upper Bay 
fishermen without a corresponding increase in revenues.
    Implementation of the NPA 3 would also impact all pound net 
fishermen in the Virginia Chesapeake Bay during the regulated period. 
For the five lower Bay fishermen, the net revenue increase would range 
from $13,408 to $26,816 or an increase in net revenues of 16.9 percent 
to 33.7 percent of annual revenues. For 16 upper Bay fishermen affected 
by this alternative, the cost over the current regulations would be 
from $2,002 to $4,004 or 3.6 percent to 7.2 percent of annual revenues. 
The total impact to the pound net industry would be positive as there 
would be an increase in net revenues over the status quo (NPA 1). The 
total increase in net revenues for lower Bay fishermen would be $93,856 
(=[3 harvesters x $13,408]+[2 harvesters x $26,816]), while the total 
cost to the upper Bay fishermen would be $50,050 (=[7 harvesters x 
$2,002]+[9 harvesters x $4,004]). This provides a net increase in 
industry revenues of $43,806 or 2.0 percent of 2004 industry revenues 
(=$0.044 M/$2.187 M). Again, however, NMFS recognizes that costs would 
be imposed upon upper Bay fishermen without a corresponding increase in 
revenues under NPA 3.
    In the lower portion of the Virginia Chesapeake Bay, where all 
offshore leaders are prohibited under the current regulations, all five 
harvesters would be impacted under all of the alternatives. With the 
proposed action, annual revenues per harvester would be increased 
between 16.9 percent and 33.7 percent. The proposed action and NPA 3 
would result in the same economic benefit on lower Bay fishermen. The 
economic benefit under NPA 2 to lower Bay fishermen would be less 
compared to the proposed action (net increase of 12 percent to 28.9 
percent), because the increase in revenues to offshore pound nets in 
the lower Bay is offset by the requirement for nearshore pound net 
leaders in this area to obtain and use the modified pound net leader. 
In the upper Bay area, the NPAs 2 and 3 would reduce annual revenues 
per harvester by 3.6 percent to 7.2 percent, depending on the ratio of 
offshore to nearshore pound net leaders fished by each harvester. 
Taking no action (NPA 1) would not have economic consequences or 
benefits.
    In 2004, industry revenues for the regulated part of the Virginia 
Chesapeake Bay were $2.2 M for the pound net fishery. Industry profits 
would be increased by 4.3 percent (=$0.094 M/$2.2 M) under the proposed 
action. Under the NPA 2 and NPA 3, 21 of 21 fishermen are affected, and 
industry profits are increased by 0.8 percent (=$0.0.017 M/$2.2 M) and 
2.0 percent (=$0.0.044 M/$2.2 M), respectively. As NPA 1 is the status 
quo, it is the basis against which the other alternatives are evaluated 
and would not result in industry costs or benefits.
    This action does not propose new reporting or record keeping 
requirements.
    This proposed rule does not duplicate, overlap or conflict with 
other Federal rules.

List of Subjects

50 CFR Part 222

    Endangered and threatened species, Exports, Reporting and 
Recordkeeping requirements.

50 CFR Part 223

    Endangered and threatened species, Exports, Transportation.

    Dated:April 12, 2006.
James W. Balsiger,
Acting Deputy Assistant Administrator for Regulatory Programs, National 
Marine Fisheries Service.
    For reasons stated in the preamble, 50 CFR part 222 is proposed to 
be amended 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. 1531 et seq.; 16 U.S.C. 742a et seq.; 31 
U.S.C. 9701.
    2. In Sec.  222.102, the definition of ``Pound Net Regulated Area 
I'' and ``Pound Net Regulated Area II'' and ``Modified pound net 
leader'' are added in alphabetical order to read as follows:


Sec.  222.102  Definitions.

* * * * *
    Modified pound net leader means a pound net leader that is affixed 
to or resting on the sea floor and made of a lower portion of mesh and 
an upper portion of only vertical lines such that: the mesh size is 
equal to or less than 8 inches (20.3 cm) stretched mesh; at any 
particular point along the leader the height of the mesh from the 
seafloor to the top of the mesh must be no more than one-third the 
depth of the water at mean lower low water directly above that 
particular point; the mesh is held in place by vertical lines that 
extend from the top of the mesh up to a top line, which is a line that 
forms the uppermost part of the pound net leader; the vertical lines 
are equal to or greater than 5/16 inch (0.8 cm) in diameter and strung 
vertically at a minimum of every 2 feet (61 cm); and the vertical lines 
are hard lay lines.
* * * * *
    Pound Net Regulated Area I means Virginia waters of the mainstem 
Chesapeake Bay, south of 37[deg] 19.0' N. lat. and west of 76[deg] 
13.0' W. long., and all waters south of 37[deg] 13.0' N. lat. to the 
Chesapeake Bay Bridge Tunnel (extending from approximately 37[deg] 05' 
N. lat., 75 59' W. long. to 36[deg] 55' N. lat., 76[deg] 08' W. long.) 
at the mouth of the Chesapeake Bay, and the portion of the James River 
downstream of the Hampton Roads Bridge Tunnel (I-64; approximately 
36[deg] 59.55' N. lat., 76[deg] 18.64' W. long.) and the York River 
downstream of the Coleman Memorial Bridge (Route 17; approximately 
37[deg]14.55' N. lat, 76[deg]30.40' W. long.)
* * * * *
    Pound Net Regulated Area II means Virginia waters of the Chesapeake 
Bay outside of Regulated Area I defined above, extending to the 
Maryland-Virginia State line (approximately 37[deg] 55' N. lat., 
75[deg] 55' W. long.), the Great Wicomico River downstream of the 
Jessie Dupont Memorial Highway Bridge (Route 200; approximately 37[deg] 
50.84' N. lat, 76[deg] 22.09' W. long.), the Rappahannock River 
downstream of the Robert Opie Norris Jr. Bridge (Route 3; approximately 
37[deg] 37.44' N. lat, 76[deg] 25.40' W. long.), and the Piankatank 
River downstream of the Route 3 Bridge (approximately 37 30.62' N. lat, 
76[deg] 25.19' W. long.) to the COLREGS line at the mouth of the 
Chesapeake Bay.
* * * * *
    For the reasons set forth in the preamble, 50 CFR part 223 is 
proposed to be amended as follows:

PART 223--THREATENED MARINE AND ANADROMOUS SPECIES

    1. In Sec.  223.206, paragraph (d)(10) is revised to read as 
follows:


Sec.  223.206  Exemptions to prohibitions relating to sea turtles.

* * * * *
    (d) * * *

[[Page 19681]]

    (10) Restrictions applicable to pound nets in Virginia-(i) Offshore 
pound net leaders in Pound Net Regulated Area I. During the time period 
of May 6 through July 15 each year, any offshore pound net leader in 
Pound Net Regulated Area I must meet the definition of a modified pound 
net leader. Any offshore pound net leader in Pound Net Regulated Area I 
that does not meet the definition of a modified pound net leader must 
be removed from the water prior to May 6 and may not be reset until 
July 16.
    (ii) Nearshore pound net leaders in Pound Net Regulated Area I and 
all pound net leaders in Pound Net Regulated Area II. During the time 
period of May 6 to July 15 each year, any nearshore pound net leader in 
Pound Net Regulated Area I and any pound net leader in Regulated Area 
II must have only mesh size less than 12 inches (30.5 cm) stretched 
mesh and may not employ stringers. Any nearshore pound net leader in 
Regulated Area I or any pound net leader in Regulated Area II with 
stretched mesh measuring 12 inches (30.5 cm) or greater, or with 
stringers, must be removed from the water prior to May 6 and may not be 
reset until July 16.
* * * * *
[FR Doc. E6-5686 Filed 4-14-06; 8:45 am]
BILLING CODE 3510-22-S