[Federal Register Volume 74, Number 97 (Thursday, May 21, 2009)]
[Proposed Rules]
[Pages 23822-23837]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: E9-11945]
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DEPARTMENT OF COMMERCE
National Oceanic and Atmospheric Administration
50 CFR Part 223
[Docket No. 070910507-81216-02]
RIN 0648-AV94
Endangered and Threatened Wildlife and Plants: Proposed
Rulemaking to Establish Take Prohibitions for the Threatened Southern
Distinct Population Segment of North American Green Sturgeon
AGENCY: National Marine Fisheries Service (NMFS), National Oceanic and
Atmospheric Administration (NOAA), Commerce.
ACTION: Proposed rule; request for comments; notice of availability of
a draft environmental assessment.
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SUMMARY: Under section 4(d) of the Endangered Species Act (ESA), the
Secretary of Commerce (Secretary) is required to adopt such regulations
as he deems necessary and advisable for the conservation of species
listed as threatened. This proposed ESA 4(d) rule represents the
regulations that we, the National Marine Fisheries Service (NMFS),
believe necessary and advisable to conserve the threatened Southern
Distinct Population Segment of North American green sturgeon (Acipenser
medirostris; hereafter Southern DPS). We propose to apply the
prohibitions listed under ESA sections 9(a)(1)(A) through 9(a)(1)(G)
for the Southern DPS, and we highlight specific categories of
activities that are likely to result in take of Southern DPS fish. We
do not find it necessary and advisable to apply the take prohibitions
to certain categories of activities that contribute to conserving the
Southern DPS. We also propose a variety of methods by which take of the
Southern DPS may be authorized.
We announce the availability of a draft environmental assessment
(EA) that analyzes the environmental impacts of promulgating these
proposed 4(d) regulations for the Southern DPS. Finally, we solicit
comments regarding the draft EA and this proposed rule.
DATES: Comments regarding the proposed rule and supporting documents
may be sent to the appropriate address or fax number (see ADDRESSES),
no later than 5 p.m. Pacific Standard Time on July 20, 2009. A public
hearing will be held promptly if any person so requests by July 6,
2009. Notice of the location and time of any such hearing will be
published in the Federal Register not less than 15 days before the
hearing is held.
ADDRESSES: You may submit comments, identified by RIN 0648-AV94, by any
one of the following methods:
Electronic Submissions: Submit all electronic public
comments via the Federal eRulemaking Portal http://www.regulations.gov.
Facsimile (fax): 562-980-4027, Attn: Melissa Neuman.
[[Page 23823]]
Mail: Submit written comments to Chief, Protected
Resources Division, Attn: Melissa Neuman, Southwest Region, National
Marine Fisheries Service, 501 West Ocean Blvd., Suite 4200, Long Beach,
CA 90802-4213.
Instructions: All comments received are a part of the public record
and will generally be posted to http://www.regulations.gov without
change. All Personal Identifying Information (for example, name,
address, etc.) voluntarily submitted by the commenter may be publicly
accessible. Do not submit Confidential Business Information or
otherwise sensitive or protected information.
We will accept anonymous comments (enter N/A in the required
fields, if you wish to remain anonymous). Attachments to electronic
comments will be accepted in Microsoft Word, Excel, WordPerfect, or
Adobe PDF file formats only.
A list of reference materials regarding this proposed rule can be
obtained via the Internet at http://www.swr.nmfs.noaa.gov or by
submitting a request to the Assistant Regional Administrator, Protected
Resources Division, Southwest Region, NMFS, 501 West Ocean Blvd., Suite
4200, Long Beach, CA 90802-4213.
FOR FURTHER INFORMATION CONTACT: Melissa Neuman, NMFS, Southwest Region
(562) 980-4115 or Lisa Manning, NMFS, Office of Protected Resources
(301) 713-1401.
SUPPLEMENTARY INFORMATION:
Background
We determined that the Southern DPS is at risk of extinction in the
foreseeable future throughout all or a significant portion of its range
and listed the species as threatened under the ESA on April 7, 2006 (71
FR 17757). At that time we summarized the process for considering the
application of ESA section 9 prohibitions to the threatened Southern
DPS. In the case of threatened species, ESA section 4(d) states that
the Secretary shall decide whether, and to what extent, to extend the
section 9(a) prohibitions, including those regarding take, to the
species, and authorizes us to issue regulations we consider necessary
and advisable for the conservation of the species. Such regulations may
include any or all of the prohibitions that automatically apply to
endangered species. Those prohibitions, in part, make it illegal for
any person subject to the jurisdiction of the United States to take the
listed species. The term ``take'' means to harass, harm, pursue, hunt,
shoot, wound, kill, trap, capture, or collect, or attempt to engage in
any such conduct. (16 U.S.C. 1532(19)). The term ``harm'' is defined as
any act which kills or injures fish or wildlife. Such an act may
include significant habitat modification or degradation that results in
death or injury of wildlife by significantly impairing essential
behavioral patterns, including breeding, spawning, rearing, migrating,
feeding, or sheltering. (50 CFR 222.102).
Whether take prohibitions or other protective regulations are
necessary or advisable is in large part dependent on the biological
status of the species and potential impacts of various activities on
the species. Green sturgeon have persisted for millions of years
through cycles of naturally occurring perturbations that have likely
presented short- and long-term challenges to the species' survival. We
conclude that the threatened Southern DPS of North American green
sturgeon is currently at risk of extinction primarily because of human-
induced ``takes'' involving elimination of freshwater spawning habitat,
degradation of freshwater and estuarine habitat quality, water
diversions, fishing, and other causes. Therefore, we conclude that
extending the take prohibitions to the Southern DPS is necessary and
advisable.
When the final rule to list the Southern DPS was published on April
7, 2006, we solicited the public for information that would inform the
ESA section 4(d) rulemaking. Specifically, we requested information
regarding: (1) green sturgeon spawning habitat within the range of the
Southern DPS that was present in the past, but may have been lost over
time; (2) biological or other relevant data concerning any threats to
the Southern DPS; (3) current or planned activities within the range of
the Southern DPS and their possible impact on the Southern DPS; (4)
efforts being made to protect the Southern DPS; (5) necessary
prohibitions on take to promote the conservation of the Southern DPS;
(6) quantitative evaluations describing the quality and extent of
freshwater and marine habitats (occupied currently or occupied in the
past, but no longer occupied) for juvenile and adult Southern DPS fish;
(7) activities that could be affected by an ESA section 4(d) rule; and
(8) the economic costs and benefits of additional requirements of
management measures likely to result from protective regulations. No
substantive additional comments, beyond those that had been received
during prior solicitations for information, were received.
Public scoping workshops held on May 31 and June 1, 2006, helped
advance our understanding of the threats that are likely to result in
the take of Southern DPS fish. In cases where evidence of direct take
due to a particular activity was lacking, activities that have caused
take in species that use similar habitats (i.e., migratory, spawning,
and rearing), consume similar prey types, have similar morphologies
and/or physiologies, and/or share other life history requirements
(e.g., white sturgeon (Acipenser transmontanus) and chinook salmon
(Oncorhynchus tshawytscha)) were identified and considered for their
effects on Southern DPS fish. More detailed justification regarding the
use of take information for surrogate species (i.e. one that shares a
similar life history or habitat requirement) to infer the take
potential of an activity on the Southern DPS fish is provided in
previous Federal Register notices (70 FR 17386, April 6, 2005; 71 FR
17757, April 7, 2006).
We conclude that the threatened Southern DPS of North American
green sturgeon is at risk of extinction primarily because its
populations have been reduced by human ``take,'' through activities
that include, but are not limited to: (1) commercial and recreational
fisheries activities that directly target or incidentally catch
Southern DPS fish; (2) tribal fisheries activities that directly target
or incidentally catch Southern DPS fish; (3) poaching; (4) collecting
or handling Southern DPS fish for activities such as research,
monitoring, and emergency rescues; (5) habitat-altering activities that
result in the elimination, obstruction or delay of passage of adult
Southern DPS fish to and from spawning areas, or otherwise result in
the inability of adult Southern DPS fish to migrate to and from
spawning areas; (6) habitat-altering activities that result in the
destruction, modification or curtailment of spawning or rearing habitat
for egg, larval or juvenile stages; (7) habitat altering activities
that result in the elimination, obstruction or delay of downstream
passage of larval or juvenile stages of Southern DPS fish; (8)
entrainment and impingement of any life stage of Southern DPS fish
during the operation of water diversions, dredging or power generating
projects; (9) application of pesticides adjacent to or within waterways
that contain any life stage of Southern DPS fish at levels that
adversely affect the biological requirements of the Southern DPS; (10)
discharge or dumping of toxic chemicals or other pollutants into waters
or areas that contain Southern DPS fish; and (11) introducing or
releasing non-native species likely to alter the Southern DPS'
[[Page 23824]]
habitat or to compete with the Southern DPS for space or food.
Spatial Context for Proposed 4(d) Rule Application
As described in a Federal Register notice (68 FR 4433) published on
January 23, 2003, we determined that based on genetic and behavioral
information, North American green sturgeon is comprised of at least two
DPSs that qualify as species under the ESA: (1) a northern DPS
consisting of populations originating from coastal watersheds northward
of and including the Eel River (``Northern DPS''); and (2) a southern
DPS consisting of populations originating from coastal watersheds south
of the Eel River (``Southern DPS'') and the Central Valley of
California. These geographic boundaries were largely defined by genetic
evidence indicating that, among samples from rivers where green
sturgeon are known to spawn (i.e. the Rogue, Klamath, and Sacramento
rivers), the Rogue and Klamath River fish were more similar to one
another than to the Sacramento River fish (Israel et al., 2004).
Although the Southern DPS boundaries are defined by the species'
genetic structure and its likely strong homing capabilities and
spawning site fidelity, the spatial extent of the ESA listing and
proposed take prohibitions for the Southern DPS is not confined to
areas south of the Eel River. Southern DPS subadults and adults tagged
in San Pablo Bay, a northern extension of San Francisco Bay, have been
tracked in estuarine and marine waters far north of the Eel River
(Lindley et al., 2008), and preliminary genetic mixed stock analyses
indicate that a proportion of green sturgeon in many estuaries north of
the Eel River DPS boundary are of Southern DPS origin (J. Israel, UC
Davis, 2006, unpublished data).
Tracking data, genetic mixed stock analysis, and direct observation
indicate that Southern DPS fish occur in freshwater rivers and coastal
estuaries and bays along the west coast of North America, including,
but not limited to: San Pablo Bay, CA; Suisun Bay, CA; San Francisco
Bay, CA (Radtke, 1966; CDFG, 2002; Kelly et al., 2006; J. McLain,
USFWS, 2006, unpublished data; Department of Water Resources Bay Delta
and Tributaries data base, 2005, http://bdat.ca.gov/index.html); the
Sacramento-San Joaquin Delta in the Central Valley California (Radtke,
1966; CDFG, 2002; Wang, 2006); Sacramento River, CA (USFWS, 1992; Adams
et al., 2002; Gaines and Martin, 2002; Israel et al., 2004; Heublein et
al., in press); lower Feather River, CA (Adams et al., 2006; A.
Seeholtz, CDWR, 2008, unpublished data; FERC, 2008, unpublished data);
lower Yuba River, CA (Adams et al., 2002; CDFG, 2002; G. Reedy, South
Yuba River Citizens League, 2006, unpublished data); Humboldt Bay, CA
(Moyle et al., 1992; B. Pinnix, USFWS, 2008, unpublished data; S.
Lindley, NMFS, 2008, unpublished data); Coos Bay, OR (Lindley and
Moser, 2006); Winchester Bay, OR (Lindley and Moser, 2006; J. Israel,
UC Davis, 2006, unpublished data); Yaquina Bay, OR (Emmett et al.,
1991; ODFW, 2002; D. M. Nelson, 2008, Letter to Steve Stone; J.
Hightower, USGS, 2006, unpublished data); lower Columbia River and
estuary, OR and WA (Israel et al., 2004; Lindley and Moser, 2006; WDFW,
2006, unpublished data; ODFW, 2006, unpublished data); Willapa Bay, WA
(Lindley and Moser, 2006; J. Israel and B. May, UC Davis, 2006,
unpublished data; WDFW, unpublished data; ODFW, unpublished data);
Grays Harbor, WA (Lindley and Moser, 2006; J. Israel and B. May, UC
Davis, 2006, unpublished data); and Puget Sound, WA (Lindley and Moser,
2006). Southern DPS fish also occur in coastal waters within 110 meters
depth from Monterey Bay, CA, to Yakutat Bay, AK (Lindley and Moser,
2006; Lindley et al., 2008), including the Strait of Juan de Fuca, WA.
Green sturgeon have also been observed or collected in the
following coastal rivers, estuaries, and marine waters; however, in
many of these cases, individuals were not identified to the DPS level:
Elkhorn Slough, CA (Moyle et al., 1992; Yoklavich et al., 2002; S.
Lindley, NMFS, 2008, unpublished data; C. Raifsnider and J. Steinbeck,
Tenera Environmental, 2006, personal communication); Tomales Bay, CA
(Moyle et al., 1992; J. McLain,USFWS, 2006, unpublished data); Noyo
Harbor, CA (Moyle et al., 1992; D. Catania, California Academy of
Sciences, 2006, personal communication); Eel River, CA (Moyle et al.,
1992; Adams et al., 2006); Klamath/Trinity River, CA (Nakamoto et al.,
1995; VanEenenaam et al., 2001; Adams et al., 2002; Adams et al., 2006;
VanEenenaam et al., 2006; Benson et al., 2007); Rogue River, OR (Rien
et al.; 2001; Adams et al., 2002; Erickson et al., 2002; Adams et al.,
2006; Erickson and Hightower, 2007; Erickson and Webb, 2007; Webb and
Erickson, 2007); Siuslaw River, OR (Emmett et al., 1991; S. Lindley and
M. Moser, NMFS, 2008, unpublished data); Alsea River, OR (Emmett et
al., 1991; D. M. Nelson, 2008, Letter to Steve Stone); Tillamook Bay,
OR (Emmett et al., 1991; ODFW, 1997; ODFW, 2002; D. M. Nelson, 2008,
Letter to Steve Stone); coastal waters within 110 m depth from the
California/Mexico border to Monterey Bay, CA (Roedel, 1941; Norris,
1957; R. Rasmussen, NMFS, 2006, unpublished data); and coastal waters
northwest of Yakutat Bay, AK, including portions of the Gulf of Alaska,
and the Bering Sea (J. Ferdinand and D. Stevenson, NMFS, 2006,
unpublished data).
Evaluation of Activities
While this proposal applies the take prohibitions to any activity
that takes the Southern DPS, we wanted to determine which activities
would most likely impede efforts necessary to conserve and recover the
Southern DPS. To do this, we considered the following questions: (1)
For which activities do we have evidence of take of Southern DPS fish;
(2) for those activities where evidence of Southern DPS take does not
exist, is there evidence of take of surrogate species that share
similar biological requirements with Southern DPS fish; (3) are
protective/conservation measures underway to reduce or minimize take
imposed by some activities; and (4) are there additional protective/
conservation measures that, if taken, would reduce take to low enough
levels such that particular activities could proceed without
appreciably reducing the likelihood of survival and recovery of the
Southern DPS?
Commercial and Recreational Fisheries Activities
Take of Southern DPS fish occurs during commercial and recreational
fishing activities throughout the range of North American green
sturgeon. However, quantifying fishery-related take reliably and
assessing its effects is challenging because: (1) Northern and Southern
DPS fish are morphologically indistinguishable from one another and
when green sturgeon have been taken, they have rarely been identified
to the DPS level; (2) until recently some fisheries did not report
green sturgeon take, and (3) in cases where data on take of green
sturgeon is available, methods for estimating the total annual take by
a fishery are still being developed. The two DPSs co-inhabit some
coastal areas and bays in Northern California, Oregon, and Washington,
and the proportion of Southern DPS fish contributing to overall
populations in these areas may be high (e.g., 80 percent in the
Columbia River; J. Israel, UC Davis, 2008, unpublished data). Thus,
while we know that fisheries-related take is occurring, we are
uncertain how this take is apportioned between the two DPSs, different
locales, and different types of fisheries.
[[Page 23825]]
Green sturgeon are taken as bycatch in white sturgeon fisheries,
salmon gillnet fisheries, coastal groundfish trawl fisheries, and
coastal California halibut set net fisheries (Adams et al., 2006; R.
Rasmussen, NMFS, 2006, unpublished data; J. Ferdinand et al., NMFS,
2006, unpublished data). These fisheries have taken large numbers of
green sturgeon historically and have been cited as factors in the
decline of the species (70 FR 17386, April 6, 2005; 71 FR 17757, April
7, 2006). For example, from 1985 to 1993, the harvest of green sturgeon
in commercial fisheries in the Columbia River and in Washington ranged
from 3,000 to over 7,500 fish per year. Sport fishing harvest during
the same period ranged from less than 100 to over 500 fish, with the
majority harvested from the Columbia River. Since 1993, commercial and
sport harvest of green sturgeon has declined in the Columbia River and
Washington fisheries to about 150 fish harvested in 2003 (Adams et al.
2006).
State recreational and commercial fishing regulations have been
revised in response to evidence of recent sturgeon declines and to the
listing of the Southern DPS. In California, the California Fish and
Game Commission approved revised regulations, effective March 1, 2007,
to prohibit retention of green sturgeon, alter the slot (size) limit
(142 cm) and bag limit (one individual daily; 3 individuals annually)
for white sturgeon, and require implementation of a sturgeon report
card system. The Washington Fish and Wildlife Commission adopted a
permanent rule to prohibit retention of green sturgeon in recreational
fisheries statewide effective May 1, 2007. In addition, the Washington
Department of Fish and Wildlife and Oregon Department of Fish and
Wildlife voted to prohibit the retention of green sturgeon in Columbia
River recreational fisheries from Bonneville Dam to the mouth of the
river, effective January 1, 2007. For commercial fisheries, the
retention of green sturgeon has been prohibited in the Columbia River
by emergency rule since July 2006 and statewide in Washington by
permanent rule since January 26, 2007. The State of California has
prohibited commercial fishing for sturgeon since 1917. While these
emergency and permanent rules offer Southern DPS fish protection, it is
unclear whether the state closures will remain in effect over the long-
term and ultimately what overall effect the closures will have on the
Southern DPS.
Commercial groundfish trawl fisheries occurring in coastal waters
along the West coast of North America take green sturgeon. Fish are
primarily caught as bycatch off the coast of California. Over a 6-year
period, from 2001-2007, 450 green sturgeon were reported as by-catch in
trawls off the California coast. Almost all green sturgeon caught in
this fishery are released alive (J. Majewski, NMFS, 2006, unpublished
data), but the long-term fate of these individuals remains unknown. A
program for monitoring green sturgeon take was established with the
NMFS Observer Program in January 2007. Additional measures that may be
implemented to protect green sturgeon and the Southern DPS include zero
retention of green sturgeon in all fisheries, minimizing incidental
catch, monitoring of incidental catch, increased enforcement, fisheries
closures in areas important to the species, and outreach and education
on proper catch and release methods and green sturgeon conservation
issues.
Tribal Fisheries
Green sturgeon are taken as bycatch in tribal salmon and sturgeon
fisheries conducted by the Quinault Tribe in coastal Washington waters.
Tribal harvest of green sturgeon occurs in Grays Harbor and at the
mouth of tributaries, primarily the Chehalis and Humptulips rivers. The
number of green sturgeon taken annually from 1985 to 2003 ranged from
less than 10 to almost 200 fish (Adams et al., 2006). In 2006, the
Quinault Tribe implemented zero retention of green sturgeon for the
Grays Harbor fishery (J. Schumacker, Quinault Indian Tribe, 2006,
personal communication). A large proportion of green sturgeon caught in
Grays Harbor may be Southern DPS fish, based on hydroacoustic tracking
information (Lindley and Moser, 2006) and a genetic study indicating
that approximately 50 percent of green sturgeon sampled in Grays Harbor
belong to the Southern DPS (J. Israel and B. May, UC Davis, 2006,
unpublished data).
Green sturgeon are also taken, though rarely, in tribal commercial
and subsistence salmon fisheries occurring in freshwater and coastal
marine waters of Washington, including the Strait of Juan de Fuca,
Georgia and Rosario straits, and Puget Sound (W. Beattie, NW Indian
Fisheries Commission, 2008, personal communication). The Yurok and
Hoopa Tribes harvest green sturgeon in the Klamath River in California,
but most of the fish are believed to be Northern DPS green sturgeon (J.
Israel, UC Davis, 2006, unpublished data). Overall, the take of green
sturgeon in tribal fisheries has been low compared to non-tribal
fisheries. Measures that may be implemented to conserve the Southern
DPS include a commitment by the Quinault Tribe, and perhaps other
Tribes within the occupied range of the Southern DPS, to minimize take
and monitor incidental catch of green sturgeon over the long-term.
Poaching
Poaching is a potential threat to the Southern DPS. In recent
years, several arrests have been made for illegal harvest of white
sturgeon for their meat and roe from the Sacramento River (CDFG, 2003
and 2006), the Sacramento-San Joaquin Delta (CDFG, 2004), and the lower
Columbia River (Cohen, 1997). In the lower Columbia River, an estimated
2,000 sturgeon were killed over a 5-year period by poachers to produce
caviar (Cohen, 1997). Poaching may be less significant than incidental
take associated with white sturgeon sportfishing (Williamson, 2003).
However, the tendency for green sturgeon to form aggregations for long
periods of time may make them easy targets for poachers (Erickson et
al., 2002). Increased public outreach and awareness, increased
enforcement, and heavier sentences and fines for poachers may help to
protect green sturgeon from the threats of poaching.
Research, Monitoring and Enforcement Activities
Scientific research and monitoring of the Southern DPS contributes
valuable information for the management, conservation, and future
status reviews of the species. However, collection or handling
associated with scientific research and monitoring constitutes take and
may result in stress, injuries, or mortality of Southern DPS fish. In
recent years, much research and monitoring effort has been placed on:
(1) tracking the movements and habitat use of Southern DPS fish by
using a variety of non-lethal tagging techniques; and (2) identifying
the DPS of origin using non-lethal genetic sampling techniques. These
two research and monitoring activities provide information crucial to
the development of an effective recovery strategy for the species. The
best available information indicates that these procedures, when done
according to accepted protocols, result in minimal short-term stress to
the fish and do not result in lethal take. Important scientific
information (e.g., genetic, pathologic, taxonomic, meristic) is also
gathered from already dead individuals, thereby providing valuable data
without putting the species at further risk.
Enforcement of the ESA and its implementing regulations is an
essential component of protecting and recovering
[[Page 23826]]
species once they are listed. Enforcement of this proposed regulation
for the Southern DPS of green sturgeon may involve take. For example,
when acting in the course of his or her official duties, a NMFS
enforcement agent investigating an alleged ESA take violation may need
to collect a Southern DPS fish or samples thereof as evidence of the
violation.
Emergency Rescue and Salvage Activities
Emergency fish rescue activities, including aiding sick, injured,
or stranded fish, disposing of dead fish, or salvaging dead fish for
use in scientific studies, are forms of take. Rescue activities would
benefit the Southern DPS in the event of emergency situations that
result from natural disasters or national defense or security
emergencies (see 50 CFR 402.05). Activities such as the rescue of fish
stranded behind a man-made barrier (e.g., weirs, nets, dams) are not
considered emergency fish rescue activities and should be subject to
NMFS ESA review.
Habitat-altering Activities
Dams and water diversion structures have caused the elimination,
obstruction, or delay of passage for green sturgeon and other sturgeon
species and may reduce body condition and reproductive success. For
example, dams and water diversion structures have been observed to
obstruct or disrupt the upstream spawning migrations of shortnose
sturgeon in the lower Cape Fear River, NC (Moser and Ross, 1995). White
sturgeon have also been found stranded behind the Fremont Weir in the
Yolo Bypass, CA (Harrell and Sommer, 2006). Disruptions in migration
may cause fish to stop their upstream migration or may delay access to
spawning habitats (Moser and Ross, 1995). The inability to reach
spawning habitats may cause fish to spawn in habitats of lower quality,
resulting in decreased recruitment (Cooke and Leach, 2004). Several
dams and water diversion structures exist along the spawning migration
route of the Southern DPS and would be expected to have detrimental
effects similar to those observed in surrogate species. Fish passage
studies at the Red Bluff Diversion Dam (RBDD) in the Sacramento River
show that the RBDD blocks the upstream migration of the Southern DPS
when the gates are lowered between May 15 and September 15 (Heublein et
al., 2006; Brown, 2007). Mitigation measures have been implemented,
including the raising of RBDD gates from September 15 to May 15 each
year to allow fish passage and the protection and restoration of
spawning and rearing habitat along the Sacramento River, bays, and the
Sacramento-San Joaquin Delta. However, when the gates are raised, green
sturgeon may become disoriented or suffer injuries due to the high
velocity of water passing under the gates (M. Tucker, NMFS, 2007,
personal communication). Between May 18 and June 10, 2007, carcasses of
10 adult Southern DPS fish (168-226 cm total length) were found at
(n=2) or downstream (n=8) of RBDD (E. Campbell, USFWS, 2007,
unpublished data). Locations of the retrieved carcasses and necropsy
results suggest that the fish suffered mortality due to injuries
inflicted by the gates at RBDD. Installation of adequate fish passage
facilities, modification of existing passage facilities, or other
provisions to specifically aid sturgeon passage at dams and diversions,
and application of other mitigation measures, such as salvage
operations, would contribute to the protection of the Southern DPS.
The elimination, obstruction, or delay of downstream passage is a
concern for larval and juvenile stages of the Southern DPS, as are
habitat-altering activities that destroy, modify, or curtail spawning
or rearing habitats for egg, larval, or juvenile stages. Specific
concerns include, but are not limited to: increased sediment input or
runoff into streams; filling in or isolation of stream channels, side
channels, and intermittent waters; direct removal or alteration of
physical structures; and obstruction of downstream migration.
Increased input or runoff of fine sediments into streams may result
from a number of activities including, but not limited to, mining,
logging, farming, grazing, and bridge and road construction. Increased
erosion and sediment input or runoff into streams caused by land use
and other human activities have been found to reduce the survival and
successful development of eggs and embryos of salmon and other fish
species (Scrivener and Brownlee, 1989; Owen et al., 2005). The effects
on green sturgeon eggs and embryos are likely to be similar. Green
sturgeon eggs are large and dense and likely sink into rock crevices or
attach to hard surfaces (Deng et al., 2002; Kynard et al., 2005). Once
hatched, green sturgeon embryos remain near the bottom and use rocks as
cover (Kynard et al., 2005). Excess fine sediments can compromise
successful development by burying already-deposited eggs , reducing
interstitial dissolved oxygen available for eggs (Scrivener and
Brownlee, 1989), or filling areas used by embryos for cover. Thus,
Southern DPS eggs or embryos may be taken due to habitat-altering
activities that increase input of fine sediments or runoff into
spawning or rearing habitat. The effect that increased input of fine
sediments or runoff has at the individual, population and species
levels will depend on the temporal and spatial extent of habitat
change. The only way to determine this is to analyze particular
activities on a case-by-case basis.
The filling in or isolation of stream channels, side channels, and
intermittent waters may destroy or block access to rearing habitats, or
impede or delay downstream migration by trapping larvae and juveniles
that have entered these areas. Activities that fill in or isolate
waters include, but are not limited to, the installation of tide gates,
culverts, and debris- or sediment-trapping road crossing structures.
These activities and their effects are a concern for listed salmon and
steelhead and may also affect larval and juvenile Southern DPS fish.
However, we currently lack the information needed to quantitatively
assess these effects. Although relatively large numbers of juveniles
have been collected in shallow areas of the Santa Clara shoal in the
Sacramento-San Joaquin Delta (Radtke, 1966), the use of stream
channels, side channels, and intermittent waters as rearing habitat by
green sturgeon larvae and juveniles has not been documented.
Information regarding the use of these habitats by early life stages of
green sturgeon is needed.
Direct removal or alteration of physical structures essential to
the integrity and function of the Southern DPS's spawning or rearing
habitat, including rocks, soil, gravel, and vegetation, may adversely
affect the growth and survival of larvae and juveniles. Green sturgeon
likely use specific substrate types at different life stages, but
observations of early life stages of green sturgeon in the field are
lacking. Studies suggest that spawning most likely occurs over cobble
substrates that provide crevices and cover for eggs (Kynard et al.,
2005; Nguyen and Crocker, 2006). However, in a laboratory study of
substrate use by post-hatch larval green sturgeon, growth and survival
was greatest in flat slate-rock substrates that provided cover and
sufficient foraging opportunities (Nguyen and Crocker, 2006). Survival
was low in cobble substrates, because larvae became trapped in crevices
and died; whereas in sand substrates, the cause of lower survival and
growth was attributed to the ingestion of sand particles similar in
size to food particles (Nguyen and Crocker, 2006). Juveniles
[[Page 23827]]
likely use deep pool habitats with rock structure during the winter
(Kynard et al., 2005). Removal or alteration of these physical
structures (i.e. cobble for spawning and egg development; flat rock for
larval rearing; deep pool habitats with rock structure for juvenile
rearing) may reduce spawning or rearing success rates. Information
regarding the use of spawning habitats by Southern DPS early life
stages and the effects of removing or altering physical components of
Southern DPS spawning habitat on recruitment success is needed.
The construction and maintenance of dams and water diversion
structures may impede or delay downstream migration and alter habitats
important to larval and juvenile stages of the Southern DPS. Dams and
water diversions may block downstream migration of larvae and
juveniles, unless fish transport or bypass facilities exist. Passage
across dams and water diversion structures may also disorient or injure
larvae and juveniles and make them more vulnerable to predation, as has
been observed for juvenile salmonids at RBDD (Bigelow and Johnson,
1996; Gaines and Martin, 2002). The actual construction of dams and
water diversion structures may cause increased erosion and
sedimentation and disrupt or alter physical structures in spawning or
rearing habitats, with effects as described in the previous paragraphs.
While existing laws require mining, timber harvest, and other
resource use plans to address erosion and other adverse impacts on
stream habitats, these laws may not be adequate to protect the Southern
DPS. Additional measures that would help reduce potential adverse
impacts on Southern DPS fish are: (1) protection of riparian habitat by
limiting activities that cause erosion, sediment input or runoff into
streams, or roadway and other linear development near or across
streams; (2) construction of fish protection and passage facilities;
and (3) limiting the temporal and/or spatial scopes of habitat
alteration activities that occur in and near spawning and rearing
locations.
Habitat Restoration
The primary purpose of habitat restoration is to restore natural
aquatic or riparian habitat conditions or processes over the long-term.
Specifically, we define habitat restoration as the process of
reestablishing a self-sustaining habitat that closely resembles natural
conditions in terms of structure and function for the Southern DPS. A
variety of habitat-altering activities such as barrier removal or
modification to restore natural water flows, river and estuarine bed
restoration, natural bank protection, restoration of native vegetation,
removal of non-native species, and removal of contaminated sediments
have been used to reestablish natural river and estuarine functions
over the long-term. Although take of green sturgeon could potentially
occur during the course of completing restoration activities, we do not
have evidence that these types of activities have taken the Southern
DPS or a surrogate species. It is likely that these activities are
important to the conservation and recovery of the Southern DPS.
Entrainment and Impingement Risks
The operation of water diversions, power generating projects, and
dredging activities pose entrainment and impingement threats to all
life stages of the Southern DPS. We define entrainment to mean the
incidental trapping of any life stage of fish within waterways or
structures that carry water being diverted for anthropogenic use. We
define impingement to mean the entrapment of any life stage of fish on
the outer part of any structure (e.g., intake structures, screening
devices) that separates water traveling a natural course of passage
from water that is being diverted for anthropogenic use. Unscreened
water diversions number in the hundreds to thousands in the Sacramento
River and the Sacramento-San Joaquin Delta (Herren and Kawasaki, 2001).
Factors that determine the entrainment risk of fish at diversions
include the location and size of fish. A study of fish entrainment at
an unscreened diversion in the Sacramento River documented entrainment
of fish ranging in size from 9 to 59 mm fork length (FL) in July 2000
and 2001 (Nobriga et al., 2004). Green sturgeon were not among the
species documented in the study, but Southern DPS larvae and small
juveniles within the size range of 9-59 mm FL occur in the Sacramento
River at that time of year and are believed to also be at risk of
entrainment at unscreened diversions. Entrainment of juvenile green
sturgeon has been documented at the state and Federal fish facilities
in the south Sacramento-San Joaquin Delta, where fish are salvaged
before they enter the pumps (Adams et al., 2006). Programs to install
fish screens at water diversions are being implemented and many major
diversions have already been screened. Installation of fish screens,
construction of bypass and other fish protection facilities (Bigelow
and Johnson, 1996; Gaines and Martin, 2002), adjustments in the timing
of operations, and continuation of fish salvage operations, where
applicable, would help minimize and mitigate entrainment of Southern
DPS fish at water diversions.
Evidence exists for the impingement of green sturgeon in the
operation of coastal power plants using cooling water intake systems.
Two juvenile green sturgeon were impinged and died on cooling water
intake screens at the now retired Contra Costa Plant Units 1-5 in 1978-
1979 and at the Moss Landing Power Plant in 2006 (C. Raifsnider and J.
Steinbeck, Tenera Environmental, 2006, personal communication). Current
conservation efforts include the installation of screens to reduce
entrainment, studies of fish impingement and entrainment at power
plants, and laws that require the minimization of fish impingement and
entrainment. Other actions that can be taken to reduce impingement and
entrainment include altering the time of day when water intake pumps
are operated, altering the velocity of water intake, and the use of
alternative cooling systems that do not require water intake.
Dredging operations in freshwater rivers, bays, and estuaries where
Southern DPS fish occur may pose entrainment risk. Although entrainment
of green sturgeon in dredging operations has not been documented, the
effects could be significant. Approximately two thousand juvenile white
sturgeon were entrained during operation of a large suction dredge in
the lower Columbia River (Buell, 1992). Juvenile green sturgeon would
be expected to face similar entrainment risks from dredging operations
because they are also bottom-oriented and occur in habitats similar to
white sturgeon. Long-term management strategies for San Francisco Bay
dredging operations have established regional environmental work
windows, or periods of time when certain fish species are not likely to
be present in a location. Currently, it is believed that Southern DPS
juveniles reside in San Francisco, Suisun, and San Pablo bays year-
round so environmental work windows will likely not be effective in
reducing the risks of dredging operations to the Southern DPS in these
locations. However, the use of specific types of dredging equipment
with modified designs would reduce the entrainment risk to Southern DPS
fish from dredging operations.
Pesticides and Discharge of Pollutants
The application of pesticides adjacent to or within waterways that
contain any life stage of the Southern DPS may adversely affect their
growth and
[[Page 23828]]
reproductive success. Several pesticides have been detected in the
Sacramento River Basin at levels that are likely to be harmful to
aquatic life (Domagalski et al., 2000). The accumulation of industrial
chemicals and pesticides such as polychlorinated biphenyls (PCBs),
dichloro-diphenyl-trichloroethanes (DDTs), and chlordanes in white
sturgeon gonad, liver, and muscle tissues affects growth and
reproductive development and results in lower reproductive success
(Fairey et al., 1997; Foster et al., 2001a; Foster et al., 2001b; Kruse
and Scarnecchia, 2002; Feist et al., 2005; Greenfield et al., 2005).
Green sturgeon are believed to experience similar risks from
contaminants, although their exposure may be reduced because a greater
proportion of their subadult and adult lives are spent in marine waters
(70 FR 17386, April 6, 2005). Pesticides may also indirectly affect
green sturgeon through effects on their prey species. For example,
green sturgeon are believed to enter Willapa Bay to feed on burrowing
ghost shrimp (Neotrypaea californiensis), which have declined in
abundance due to the deliberate application of carbaryl (Moser and
Lindley, 2006).
The discharge or dumping of toxic chemicals or other pollutants
into waters and areas where Southern DPS fish occur would be expected
to reduce their growth and reproductive success. Pollutants including
mercury, selenium, and arsenic have been detected in white sturgeon
gonad, liver, and muscle tissues and are believed to affect growth,
reproductive development, and reproductive success (Fairey et al.,
1997; Davis et al., 2002; Kruse and Scarnecchia, 2002; Greenfield et
al., 2005; Webb et al., 2006). Again, the effects on green sturgeon are
likely to be similar.
Under the Federal Clean Water Act, acceptable levels for
contaminants in waterways have been established by the States and the
U.S. Environmental Protection Agency (EPA). Entities must also obtain
National Pollutant Discharge Elimination System (NPDES) permits to
discharge contaminants. However, NPDES permits are not required for
irrigated agriculture and agricultural stormwater runoff. Furthermore,
the national standards for use of pesticides and toxic substances may
not be conservative enough to adequately protect the Southern DPS as
was found for listed salmonids in recent draft and final jeopardy
biological opinions issued by NMFS to the EPA (NMFS 1998, NMFS 2000,
NMFS 2008). Thus, programs to aid agricultural producers in meeting
NMFS-imposed water quality standards may be required to minimize
adverse impacts on the Southern DPS.
Non-native Species Introductions
Non-native species are a continuing problem in freshwater rivers
and coastal bays and estuaries and may affect the Southern DPS through
trophic interactions. Introduced species, such as striped bass in the
Sacramento River and the Sacramento-San Joaquin Delta, may prey on
green sturgeon. Non-native species may also replace prey species of
green sturgeon and result in greater bioaccumulation of contaminants.
For example, Potamocorbula amurensis, a non-native bivalve, has become
widespread in the San Francisco Bay and the Sacramento-San Joaquin
Delta and has replaced other common prey items for white sturgeon. P.
amurensis is an efficient bioaccumulator of selenium, a reproductive
toxin that causes deformities in embryos and reduced hatchability of
eggs, and has been linked with increased selenium levels in white
sturgeon (Linville et al., 2002). P. amurensis has also been identified
in the gut contents of at least one green sturgeon (CDFG, 2002). Non-
native species may also alter the Southern DPS' habitat or compete with
the Southern DPS for space or food. Although existing laws prohibit the
release of non-native species into the environment, accidental and
intentional introduction of non-native species remains a problem.
Eradication programs for non-native species, increased public education
and outreach, and increased fines or penalties for the release of non-
native species would help to alleviate this problem.
Proposed 4(d) Protective Regulations for the Southern DPS
We propose to apply the prohibitions listed under ESA sections
9(a)(1)(A) through 9(a)(1)(G) for the Southern DPS, including all the
ESA section 9(a)(1)(B) and 9(a)(1)(C) prohibitions (the ``take
prohibitions'') except for specific activities described below (see
Exceptions, Criteria for Exceptions, and Reporting Requirements). ESA
section 9(a)(1)(A) states that it is unlawful to import or export
endangered species into or from the United States; ESA section
9(a)(1)(B) states that it is illegal to take endangered species within
the United States or the territorial sea of the United States; ESA
section 9(a)(1)(C) states that it is illegal to take endangered species
upon the high seas; ESA section 9(a)(1)(D) states that it is illegal to
possess, sell, deliver, carry, transport, or ship, by any means
whatsoever, endangered species taken in violation of 9(a)(1)(A) and
9(a)(1)(C); ESA section 9(a)(1)(E) states that it is illegal to
deliver, receive, carry, transport, or ship in interstate or foreign
commerce by any means whatsoever and in the course of a commercial
activity, endangered species; ESA section 9(a)(1)(F) states that it is
illegal to sell or offer for sale in interstate or foreign commerce,
endangered species; and ESA section 9(a)(1)(G) states that it is
illegal to violate any regulation pertaining to endangered species or
to any threatened species of fish or wildlife listed pursuant to
section 4 of the ESA and promulgated by the Secretary pursuant to
authority provided by the ESA.
These prohibitions are necessary and advisable for the conservation
of the Southern DPS because human ``take'' via activities including,
but not limited to, detrimental habitat alteration, modification, and
curtailment; fisheries catch and bycatch; application of pesticides,
toxic chemicals, or other pollutants adjacent to or within waterways;
entrainment or impingement of eggs or fish during water diversion
operations, dredging, or power generation; unnecessary collection or
handling; and introduction of non-native species that disrupt trophic
pathways, has contributed to the decline of the Southern DPS and is
likely to impede its conservation and recovery.
Exceptions, Criteria for Exceptions, and Reporting Requirements
We propose exceptions to the ESA section 9(a)(1)(B) and 9(a)(1)(C)
prohibitions (the ``take prohibitions'') for specific activities. These
proposed exceptions encompass specific activities that may be excluded
from the take prohibitions for the Southern DPS through the relatively
informal coordination process described below. In determining that it
is necessary and advisable to not impose take prohibitions on certain
activities, we are mindful that new information may require a
reevaluation of that conclusion at any time. For any of the exceptions
to the take prohibitions described below, we would evaluate on a
regular basis the effectiveness of the activities in conserving and
protecting the Southern DPS. If the activities are not effective in
conserving and protecting the Southern DPS, we would identify ways in
which the activities need to be altered or strengthened. For habitat-
related exceptions to the take prohibitions, changes may be required if
the activities are not achieving desired habitat functionality or the
habitat is not supporting population productivity levels needed to
conserve the Southern
[[Page 23829]]
DPS. If the responsible agency does not make changes to respond
adequately to the new information, we would publish notification in the
Federal Register announcing the intention to impose take prohibitions
on those activities. Such an announcement would provide for a comment
period of not less than 30 days, after which we would make a final
determination whether to extend the ESA section 9(a)(1)(B) and (C) take
prohibitions to the activities. We propose that take of the Southern
DPS not be prohibited during the course of the following activities:
(1) Federal, state or private-sponsored research or monitoring
activities if they adhere to all of the following: (a) the activity
must comply with required state reviews or permits; (b) the research or
monitoring activity must be directed at the Southern DPS and not be
incidental to research or monitoring of another species; (c) take of
live mature adults in the lower Feather River from the confluence with
the Sacramento River to the Oroville Dam (rkm 116), the lower Yuba
River from the confluence with the Feather River to the Daguerre Dam
(rkm 19), or Suisun, San Pablo, and San Francisco Bays or the
Sacramento-San Joaquin Delta from the Golden Gate Bridge up into the
Sacramento River to Keswick Dam (rkm 483) may only occur from July 1
through March 1 so as to substantially increase the likelihood that
uninterrupted upstream spawning migrations of adults will occur; (d)
take must be non-lethal; (e) take involving the removal of any life
stage of the Southern DPS from the wild must not exceed 60 minutes; (f)
take must not involve artificial spawning or enhancement activities;
(g) a description of the study objectives and justification, a summary
of the study design and methodology, estimates of the total non-lethal
take of Southern DPS fish anticipated, estimates of incidental take of
other ESA listed species anticipated and proof that those takes have
been authorized by NMFS or the USFWS, identification of funding
sources, and a point of contact must be reported to NMFS at least 60
days prior to the start of the study, or for ongoing studies within 60
days after publication of the final rule; (h) reports that include the
total number of Southern DPS and any other ESA listed species taken,
information that supports that take was non-lethal, and a summary of
the project results must be submitted to NMFS on a schedule to be
determined by NMFS staff; (i) research or monitoring that involves
action, permitting or funding by a federal agency must still comply
with the requirements of ESA section 7(a)(2) in order to ensure that
the action will not jeopardize the continued existence of the
threatened Southern DPS.
(2) Enforcement activities when an employee of NMFS, acting in the
course of his or her official duties, takes the Southern DPS without a
permit, if such action is necessary for purposes of enforcing the ESA
or its implementing regulations.
(3) Emergency fish rescue and salvage activities that include
aiding sick, injured, or stranded fish, disposing of dead fish, or
salvaging dead fish for use in scientific studies, if they adhere to
all of the following: (a) the activity must comply with required state
or other Federal reviews or permits; (b) activities may only be
conducted by an employee or designee of NMFS or the U.S. Fish and
Wildlife Service (USFWS), any Federal land management agency, or
California Department of Fish and Game (CDFG), Oregon Department of
Fish and Wildlife (ODFW), Washington Department of Fish and Wildlife
(WDFW), or Alaska Department of Fish and Game (ADFG); (c) the emergency
rescue may only occur because of situations that result from natural
disasters, national defense, or security emergencies (see 50 CFR
402.05); (d) the emergency rescue must benefit the Southern DPS; (e) a
report must be submitted to NMFS that includes, at a minimum, the
number and status of fish handled and the location of rescue and/or
salvage operations within 30 days after conducting the emergency
rescue.
(4) Habitat restoration activities, including barrier removal or
modification to restore water flows, riverine or estuarine bed
restoration, natural bank stabilization, restoration of native
vegetation, removal of non-native species, or removal of contaminated
sediments, that reestablish self-sustaining habitats for the Southern
DPS, if they adhere to all of the following: (a) compliance with
required state and Federal reviews and permits; (b) a detailed
description of the restoration activity sent to NMFS at least 60 days
prior to the start of the restoration project which includes: the
geographic area affected; when activities will occur; how they will be
conducted; and the severity of direct; indirect, and cumulative impacts
of activities on the Southern DPS; identification of funding sources;
demonstration that all state and federal regulatory requirements have
been met; a description of methods used to ensure that the likelihood
of survival or recovery of the listed species is not reduced; a plan
for minimizing and mitigating any adverse impacts to Southern DPS
spawning or rearing habitat; an estimate of the amount of incidental
take of the listed species that may occur and a description of how that
estimate was made; a plan for effective monitoring and adaptive
management; a pledge to use best available science and technology when
conducting restoration activities; and a point of contact; (c) progress
reports that include the total number of Southern DPS taken,
information regarding whether the take was lethal or non-lethal, a
summary of the status of the project, and any changes in the methods
being employed, must be submitted to NMFS on a schedule to be
determined by NMFS staff; (d) activities that involve action,
permitting or funding by a federal agency must still comply with the
requirements of ESA section 7(a)(2) in order to ensure that the action
will not jeopardize the continued existence of the threatened Southern
DPS.
Exemptions Provided by NMFS-approved ESA 4(d) Programs
We propose exemptions from the take prohibitions for certain
activities included within a NMFS-approved 4(d) program. Activities
included in a 4(d) program would be excused from the take prohibitions
for the Southern DPS through a formal NMFS 4(d) program approval
process described below.
ESA 4(d) Program for Commercial and Recreational Fishery Management
Take of green sturgeon in commercial and recreational fisheries
activities would be allowed if fisheries activities were conducted
under approved Fisheries Management and Evaluation Plans (FMEPs). We
expect that, in many cases, fisheries will have acceptably small
impacts on the threatened Southern DPS as long as state fishery
management programs are specifically tailored to meet certain criteria.
NMFS-approved FMEPs must address limiting take of green sturgeon in
order to protect the listed entity, the Southern DPS. We consider this
necessary because discrimination between the non-listed Northern DPS
and listed Southern DPS, via gear specificity, visual indicators,
spatial distribution, etc., is not currently possible. In order for
NMFS to exempt commercial or recreational fishing activities from the
take prohibitions, an FMEP must: (1) prohibit retention of green
sturgeon (i.e. zero bag limit); (2) set maximum incidental take levels;
(3) include measures to minimize incidental take of green sturgeon
(e.g., temporal/spatial restrictions, size, gear); (4) provide a
biologically based rationale demonstrating that the incidental take
management strategy will not significantly reduce the
[[Page 23830]]
likelihood of survival or recovery of the Southern DPS; (5) include
effective monitoring and evaluation plans; (6) provide for evaluating
monitoring data and making revisions to the FMEP; (7) provide for
effective enforcement and education; and (8) report the amount of
incidental take and summarize the effectiveness of the FMEP to NMFS on
a biannual basis. If we find that an FMEP meets these criteria, we
would issue a letter of concurrence to the State that sets forth the
terms of the FMEP's implementation and the duties of the parties
pursuant to the FMEP.
Section 9(a)(1)(B) and (a)(1)(C) take prohibitions would not apply
to ongoing commercial and recreational fisheries activities after
publication of the final rule, for up to 120 days, if a letter of
intent to develop an FMEP addressing green sturgeon has been received
by NMFS within 30 days after the final rule is published in the Federal
Register. The exemption will be suspended if the letter of intent is
rejected without further review of an FMEP. If the letter of intent is
received within 30 days of publication of the final 4(d) rule in the
Federal Register, a final FMEP must be received by NMFS within 120 days
from the date of receipt of the letter of intent. Ongoing commercial
and recreational fisheries activities may continue until NMFS issues a
letter of concurrence (or denial) for final FMEPs.
Once an FMEP has been submitted to NMFS for review, NMFS will: (1)
provide a public comment period ([gteqt] 30 days) before approval of
new or amended FMEPs; (2) provide a letter of concurrence for approved
FMEPs that specifies the implementation and reporting requirements; (3)
evaluate FMEPs on a regular basis and identify changes that would
improve their effectiveness; and (4) provide a public comment period
([gteqt] 30 days) before withdrawing approval of an FMEP.
ESA 4(d) Program for Tribal Fishery Management
Fishery harvest or other activities conducted by a tribe, tribal
member, tribal permittee, tribal employee, or tribal agent in Willapa
Bay, WA, Grays Harbor, WA, Coos Bay, OR, Winchester Bay, OR, Humboldt
Bay, CA, and any other area where tribal treaty fishing occurs are
eligible to obtain take authorization via the same method outlined in
the NMFS final rule for authorizing take of threatened salmon and
steelhead for actions under tribal resource management plans (July 10,
2000; 65 FR 42481). This method has been modified below for the
Southern DPS. We consider current tribal fishing activities to have
acceptably small impacts on the threatened Southern DPS and propose
that if the tribes, either singly or jointly, develop tribal resource
management plans for the Southern DPS, or incorporate the Southern DPS
into existing tribal resource management plans, that current and future
tribal activities are not likely to appreciably reduce the likelihood
of survival and recovery of the species.
A tribe intending to exercise a tribal right to fish or undertake
other resource management actions that may impact the threatened
Southern DPS could create a tribal resource management plan (Tribal
Plan) that would assure that those actions would not appreciably reduce
the likelihood of survival and recovery of the species. The Secretary
would stand ready to the maximum extent practicable to provide
technical assistance to any tribe that so requests in examining impacts
on the listed Southern DPS and in the development of Tribal Plans that
meet tribal management responsibilities and needs. In making a
determination whether a Tribal Plan will appreciably reduce the
likelihood of survival and recovery of the threatened Southern DPS, the
Secretary, in consultation with the tribe, would use the best available
scientific and commercial data (including careful consideration of any
tribal data and analysis) to determine the Tribal Plan's impact on the
biological requirements of the species. The Secretary would also assess
the effect of the Tribal Plan on survival and recovery in a manner
consistent with tribal rights and trust responsibilities. Before making
a final determination, the Secretary would seek comment from the public
on his pending determination whether or not implementation of a Tribal
Plan will appreciably reduce the likelihood of survival and recovery of
the listed Southern DPS. The Secretary would publish notification in
the Federal Register of any determination regarding a Tribal Plan and
the basis for that determination.
ESA 4(d) Program for Scientific Research and Monitoring Activities
State-coordinated research activities for scientific research or
enhancement purposes that do not fall into the exception category
described above (see Exceptions, Criteria for Exceptions, and Reporting
Requirements) may receive an exemption from the take prohibitions for
the Southern DPS for activities included in a state-sponsored, ESA-
compliant, scientific research program between state fishery agencies
(i.e., CDFG, ODFW, WDFW, or ADFG) and NMFS, hereafter referred to as a
state 4(d) research program. Activities conducted as part of a state
4(d) research program must meet existing state and federal laws and
regulations and would include research and monitoring projects
conducted by state employees or by recipients of state fishery agency-
issued permits (including Federal and non-Federal entities), that
directly or incidentally take Southern DPS green sturgeon. We find that
in carrying out their responsibilities to manage state fisheries, state
agencies are conducting or sponsoring research vital for improving our
understanding of the status and risks facing the Southern DPS and other
listed species that occur in overlapping habitat, and provide critical
information for assessing the effectiveness of current and future
management practices.
State 4(d) research programs have been developed and implemented in
California, Oregon, and Washington for listed West coast salmon and
steelhead and are consistent with ESA requirements for research-related
take of these listed species. The Southern DPS would most likely be
incorporated into the existing state 4(d) research programs established
for listed salmon and steelhead. Otherwise, the state would be required
to prepare a program and submit it to NMFS for approval. NMFS may
approve the program or return the program to the state agency for
revision.
In general, we conclude that as long as state biologists and
cooperating agencies carefully consider the benefits and risks of
activities included in a state 4(d) research program, such programs
would help streamline the take authorization process for researchers,
state agencies, and NMFS by allowing state fishery agencies to maintain
primary responsibility for coordination and oversight of research
activities. Each year, researchers would be required to submit research
applications to the state fishery agency preferably through the NMFS
online application website Authorizations and Permits for Protected
Species (APPS) at https://apps.nmfs.noaa.gov. Research applications
must include, at a minimum, the following information: (1) an estimate
of the total direct or incidental take of Southern DPS fish that is
anticipated; (2) a description of the study design and methodology; (3)
a justification for take of Southern DPS fish and the techniques to be
employed; and (4) a point of contact. The state agency would have
access, via NMFS, to the submitted applications, evaluate and determine
which projects are eligible for inclusion under the program, and
approve or deny individual project applications. Once the state agency
[[Page 23831]]
review is complete, the state agency would be required to provide for
NMFS' review and approval a list of project applications approved for
possible inclusion in a 4(d) research program for the coming year.
After our review of the applications and follow-ups with the
researchers to address concerns if necessary, we would analyze effects
of the activities on the Southern DPS. Finally, we would complete the
ESA section 7 consultation and NEPA documentation and issue an approval
letter to the state fishery agency confirming that the research
activities covered within the 4(d) research program are exempt from the
ESA take prohibitions. A section 10 permit is not issued. Researchers
have to comply with the conditions of the 4(d) research program and
must submit an annual report, preferably through the NMFS online
application website Authorizations and Permits for Protected Species
(APPS) at https://apps.nmfs.noaa.gov. The annual report must include,
for each project: (1) a summary of the number of green sturgeon taken
directly or incidentally; and (2) a summary of the results of the
project, in order for NMFS to evaluate the effects of the research
project on the Southern DPS. We would continue to work with the state
fishery agencies to ensure authorized research involving listed
Southern DPS fish is both coordinated and conducted in a manner that
does not jeopardize the conservation and recovery of the Southern DPS.
Section 9(a)(1)(B) and 9(a)(1)(C) take prohibitions would not apply
to ongoing state-supported scientific research and enhancement
activities seeking take authorization of the Southern DPS fish through
a state 4(d) program, if the above information is provided to NMFS,
preferably through the NMFS online application website Authorizations
and Permits for Protected Species (APPS) at https://apps.nmfs.noaa.gov
, within 120 days after publication of the final 4(d) rule. The take
prohibitions would take effect if the state 4(d) program package is
rejected as insufficient or is denied. If the state 4(d) research
program package is received no later than 120 days after publication of
the final 4(d) rule, ongoing state-supported scientific research
activities may continue until NMFS issues a written decision of
approval or denial.
Take Authorizations Provided By ESA Sections 7 or 10
Federally funded, authorized, or implemented activities that may
require take authorization (see Proposed 4(d) Protective Regulations
for the Southern DPS), and are not covered under Exceptions, Criteria
for Exceptions, and Reporting Requirements or Exemptions Provided by
NMFS-approved 4(d) Programs above, will be examined on a case-by-case
basis through interagency consultation as prescribed by ESA section 7.
All other activities (i.e., those not federally funded, authorized, or
implemented) that may require take authorization, and are not covered
under Exceptions, Criteria for Exceptions, and Reporting Requirements
or Exemptions Provided by NMFS-approved 4(d) Programs above, will be
examined on a case-by case basis as prescribed by ESA section 10.
Federal, state and private-sponsored research activities for
scientific research or enhancement purposes that are not covered under
Exceptions, Criteria for Exceptions, and Reporting Requirements or
Exemptions Provided by NMFS-approved 4(d) Programs above, may take
Southern DPS fish pursuant to the specifications of an ESA section 10
permit. Section 9(a)(1)(B) and (a)(1)(C) take prohibitions would not
apply to ongoing research activities if an application for an ESA
section 10 (a)(1)(A) permit is received by NMFS no later than 120 days
after publication of the final 4(d) rule. The take prohibitions would
take effect if the permit application is rejected as insufficient or a
permit is denied. If the permit application is received no later than
120 days after publication of the final 4(d) rule, ongoing research
activities may continue without take prohibitions until NMFS issues or
denies a permit.
Table 1. Evaluation of activities that may occur throughout the area affected by the proposed prohibitions for Southern DPS fish, eggs or larvae.
--------------------------------------------------------------------------------------------------------------------------------------------------------
Methods of Take
Take of Protective/ Authorization
Activity Take Surrogate Conser-vation Take Authorization ---------------------------
Species Measures or Necessary ESA section
Benefits 7 or 10 4(d) Program
--------------------------------------------------------------------------------------------------------------------------------------------------------
Fishing
--------------------------------------------------------------------------------------------------------------------------------------------------------
Commercial Y ............... Y Y Y Y
--------------------------------------------------------------------------------------------------------------------------------------------------------
Recreational Y ............... Y Y Y Y
--------------------------------------------------------------------------------------------------------------------------------------------------------
Tribal Y ............... Y Y Y Y
--------------------------------------------------------------------------------------------------------------------------------------------------------
Poaching N Y N N/A N N
--------------------------------------------------------------------------------------------------------------------------------------------------------
Collection or Handling
--------------------------------------------------------------------------------------------------------------------------------------------------------
Research/monitoring
--------------------------------------------------------------------------------------------------------------------------------------------------------
Federal, State or Private-sponsored (compliant with Y ............... Y N ............ ............
Exceptions)
--------------------------------------------------------------------------------------------------------------------------------------------------------
State-sponsored (outside scope of Exceptions) Y ............... Y Y Y Y
--------------------------------------------------------------------------------------------------------------------------------------------------------
Federal or Private-sponsored (outside scope of Y ............... Y Y Y N
Exceptions)
--------------------------------------------------------------------------------------------------------------------------------------------------------
Emergency Rescue (compliant with Exceptions) N Y Y N ............ ............
--------------------------------------------------------------------------------------------------------------------------------------------------------
[[Page 23832]]
Emergency Rescue (outside scope of Exceptions) N Y N Y Y N
--------------------------------------------------------------------------------------------------------------------------------------------------------
Detrimental Habitat-Altering Activities
--------------------------------------------------------------------------------------------------------------------------------------------------------
Activities that Eliminate, Obstruct, or Delay Passage
--------------------------------------------------------------------------------------------------------------------------------------------------------
Dam installation, repair, modification, operation Y ............... Y Y Y N
--------------------------------------------------------------------------------------------------------------------------------------------------------
Diversion installation, repair, modification, operation Y ............... Y Y Y N
--------------------------------------------------------------------------------------------------------------------------------------------------------
Activities that Destroy, Modify, or Curtail Spawning or Rearing Habitat
--------------------------------------------------------------------------------------------------------------------------------------------------------
Input of fine sediments/runoff N Y Y Y Y N
--------------------------------------------------------------------------------------------------------------------------------------------------------
Dam installation, repair, modification, operation Y ............... Y Y Y N
--------------------------------------------------------------------------------------------------------------------------------------------------------
Diversion installation, repair, modification, operation Y ............... Y Y Y N
--------------------------------------------------------------------------------------------------------------------------------------------------------
Filling/isolation of channels/intermittent waters N N Y Y Y N
--------------------------------------------------------------------------------------------------------------------------------------------------------
Removal/alteration of physical structure that provides N N Y Y Y N
spawning/rearing habitat
--------------------------------------------------------------------------------------------------------------------------------------------------------
Habitat Restoration (compliant with Exceptions)
--------------------------------------------------------------------------------------------------------------------------------------------------------
Barrier removal/modification to restore flows N N Y N ............ ............
--------------------------------------------------------------------------------------------------------------------------------------------------------
Riverine or estuarine bed restoration N N Y N ............ ............
--------------------------------------------------------------------------------------------------------------------------------------------------------
Natural bank protection N N Y N ............ ............
--------------------------------------------------------------------------------------------------------------------------------------------------------
Restoration of native vegetation N N Y N ............ ............
--------------------------------------------------------------------------------------------------------------------------------------------------------
Removal of non-native species N N Y N ............ ............
--------------------------------------------------------------------------------------------------------------------------------------------------------
Removal of contaminated sediments N N Y N ............ ............
--------------------------------------------------------------------------------------------------------------------------------------------------------
Habitat Restoration (outside scope of Exceptions) N N N Y Y N
--------------------------------------------------------------------------------------------------------------------------------------------------------
Entrainment/Impingement
--------------------------------------------------------------------------------------------------------------------------------------------------------
Water diversions Y ............... Y Y Y N
--------------------------------------------------------------------------------------------------------------------------------------------------------
Power generating projects Y ............... Y Y Y N
--------------------------------------------------------------------------------------------------------------------------------------------------------
Dredging N Y Y Y Y N
--------------------------------------------------------------------------------------------------------------------------------------------------------
Pesticide/Pollutant Discharge N Y Y Y Y N
--------------------------------------------------------------------------------------------------------------------------------------------------------
Non-native Species Introductions N Y Y N/A N N
--------------------------------------------------------------------------------------------------------------------------------------------------------
Note: Evidence of take of the Southern DPS during the course of an activity is indicated (yes or no; Y or N); if there is no such evidence, then
evidence of take of a surrogate species is indicated (Y or N). Existence of protective/conservation measures to minimize take of Southern DPS fish
during the course of the activity or to benefit the Southern DPS is indicated (Y or N). Based on best available information and expert opinion,
whether an activity requires take authorization (Y or N) or is illegal according to other laws and therefore cannot be authorized (N/A), and whether
methods for allowing take resulting from a particular activity exist through ESA sections 7 or 10 or through a proposed ESA section 4(d) Program (Y or
N). This is not an exhaustive list of all activities that occur throughout the area affected by the proposed take prohibitions. Please see Proposed
4(d) Protective Regulations for the Southern DPS for the full range of activities for which NMFS is proposing to prohibit take.
Under section 9(b)(1) of the ESA, Southern DPS fish held in
captivity or a controlled environment prior to the ESA listing are
exempt from the prohibitions of section 9(a)(1)(A) and (a)(1)(G) of the
ESA and would therefore also be exempt from the prohibitions of this
proposed regulation, provided that holding and any subsequent holding
or use of the fish is not for commercial activity. The burden of proof
that Southern DPS fish were taken prior to listing lies with the
individual holding the animals. The prohibitions of this proposed
regulation would, however, apply to any progeny of Southern DPS fish
taken prior to listing.
Summary
We propose to apply the section 9 take prohibitions to the Southern
DPS,
[[Page 23833]]
while providing exceptions for some activities (i.e., some types of
research/monitoring, enforcement, emergency rescue/salvage, and habitat
restoration; see Exceptions, Criteria for Exceptions, and Reporting
Requirements) that NMFS finds will not impede, and in most cases will
promote, the conservation of the species. However, if the activity is
federally funded, authorized or implemented it will still be subject to
NMFS review under the ESA jeopardy standard (i.e. ESA section 7(a)(2)).
Apart from the subset of activities defined in Exceptions, Criteria for
Exceptions, and Reporting Requirements above, if the Southern DPS is
anticipated to be taken during the course of an activity, several
methods may be pursued to obtain take authorization depending on the
specific circumstances of the activity. For federally funded,
authorized or implemented activities, the traditional method of seeking
take coverage through ESA sections 7 or 10 exists. For activities that
are not federally funded, authorized or implemented, take authorization
may be obtained through ESA section 10, by establishing a NMFS-approved
4(d) program (i.e., for commercial or recreational fishing activities
or state-sponsored research outside the scope of those activities
defined in Exceptions, Criteria for Exceptions, and Reporting
Requirements) that adequately protects the Southern DPS, or by
developing a tribal resource management plan that will not appreciably
reduce the likelihood of survival and recovery of the Southern DPS (see
Exemptions Provided by NMFS-approved ESA 4(d) Programs). Take of the
Southern DPS due to poaching and non-native species introductions is
illegal according to existing state and/or federal laws, thus no method
of take authorization is being proposed for these activities.
Public Comments Solicited
We invite comments and suggestions from all interested parties
regarding the proposed protective regulations for the Southern DPS
under section 4(d) of the ESA (see ADDRESSES). Data, information, and
comments that are accompanied by supporting documentation such as maps,
logbooks, bibliographic references, personal notes, and/or reprints of
pertinent publications are helpful and appreciated.
Public Hearing
The ESA provides for a pubic hearing on this proposal, if
requested. Requests must be filed by the date specified in the DATES
section above. Such requests must be made in writing and addressed to
the Chief, Protected Resources Division, Attn: Melissa Neuman,
Southwest Region, National Marine Fisheries Service, 501 West Ocean
Blvd., Suite 4200, Long Beach, CA 90802-4213.
Peer Review
In December 2004, the Office of Management and Budget (OMB) issued
a Final Information Quality Bulletin for Peer Review (Peer Review
Bulletin) establishing minimum peer review standards, a transparent
process for public disclosure, and opportunities for public input. The
Peer Review Bulletin, implemented under the Information Quality Act
(Public Law 106 554), is intended to provide public oversight on the
quality of agency information, analyses, and regulatory activities. The
text of the Peer Review Bulletin was published in the Federal Register
on January 14, 2005 (70 FR 2664). The Peer Review Bulletin requires
Federal agencies to subject ``influential'' scientific information to
peer review prior to public dissemination. Influential scientific
information is defined as ``information the agency reasonably can
determine will have or does have a clear and substantial impact on
important public policies or private sector decisions,'' and the Peer
Review Bulletin provides agencies broad discretion in determining the
appropriate process and level of peer review. The Peer Review Bulletin
establishes stricter standards for the peer review of ``highly
influential'' scientific assessments, defined as information whose
``dissemination could have a potential impact of more than $500 million
in any one year on either the public or private sector or that the
dissemination is novel, controversial, or precedent-setting, or has
significant interagency interest.'' We do not consider the scientific
information underlying the proposed protective regulations to
constitute influential scientific information as defined in the Peer
Review Bulletin. The information is not novel; similar information for
listed salmonids whose range substantially overlaps with that of the
Southern DPS has been used in support of protective regulations that
have been in existence for a number of years. Therefore the agency
expects the information to be non-controversial and have minimal
impacts on important public policies or private sector decisions.
References
A complete list of the references used in this proposed rule is
available upon request (see ADDRESSES) or via the internet at http://www.swr.noaa.gov.
Classification
Regulatory Flexibility Act
The Regulatory Flexibility Act (RFA) (5 U.S.C. 601B612) was
designed to ensure that agencies carefully assess whether aspects of a
proposed regulatory scheme (record keeping, safety requirements, etc.)
can be tailored to be less burdensome for small businesses while still
achieving the agency's statutory responsibilities. When an agency
proposes regulations, the Regulatory Flexibility Act (RFA) (5 U.S.C.
601B612) requires the agency to prepare and make available for public
comment an initial regulatory flexibility analysis (IRFA) that
describes the impact of the proposed rule on small businesses,
nonprofit enterprises, local governments, and other small entities,
unless the agency is able to certify that the action will not have a
significant impact on a substantial number of small entities. This
proposed ESA 4(d) rule has specific requirements for regulatory
compliance and sets an enforceable performance standard (do not take
listed fish) when conducting specific activities unless that activity
is within a carefully circumscribed set of activities on which NMFS
proposes not to impose the take prohibitions. Hence, the universe of
entities reasonably expected to be directly or indirectly impacted by
the prohibition is broad.
Based on the language of the proposed 4(d) rule, as well as a
review of existing section 7 consultations for the Southern DPS of
green sturgeon and co-existing salmon and steelhead species, the IRFA
identified the following activities that may be affected by this
proposed rule: commercial, recreational and tribal fisheries; dams and
water diversions; power production (electric services and gas
distribution); crop agriculture and point source polluters (NPDES-
permitted activities); habitat-altering activities; and in-water
construction and dredging activities. A great deal of uncertainty
exists with regard to how potentially regulated entities will attempt
to avoid take of the Southern DPS. This is caused by two factors:
relatively little data exist on green sturgeon abundance and behavior,
and NMFS has a short history of managing the Southern DPS. In addition,
the spatial distribution of the Southern DPS overlaps nearly entirely
with habitat for salmon and steelhead species. Several key variables,
such as whether current fish passage facilities and fish screens
designed to protect salmon species will be considered adequate to
provide
[[Page 23834]]
passage for the Southern DPS over the long term, remain undetermined at
this time. Thus, while baseline protections are expected to be afforded
to the Southern DPS on behalf of salmon and steelhead species, the
degree to which incremental measures would be required for the Southern
DPS has not been determined. As such, the IRFA does not provide
estimates of total costs of conservation measures likely to be
undertaken for the Southern DPS. Instead, the analysis characterizes
potential impacts on affected industries.
In formulating this proposed rule, we considered five alternative
approaches, described in more detail in the IRFA. These are: (1) a No
Action Alternative where no ESA section 9(a)(1) prohibitions or any
other protective regulations are applied to the Southern DPS; (2) a
Full Action Alternative where all ESA section 9(a)(1) prohibitions are
applied to the Southern DPS; (3) Alternative A where the prohibitions
listed under ESA section 9(a)(1)(A) and 9(a)(1)(D) through 9(a)(1)(G)
are applied to the Southern DPS and the take prohibitions (ESA section
9(a)(1)(B) and 9(a)(1)(C)) are applied to specific categories of
activities that either cause take of Southern DPS fish; (4) Alternative
B (Proposed Action) where ESA section 9(a)(1) prohibitions are applied
to the Southern DPS as in the Full Action Alternative, but with
exceptions and exemptions for activities that NMFS has determined to be
adequately protective of the Southern DPS; and (5) Alternative C where
the ESA section 9(a)(1) prohibitions are applied as described in
Alternative A, but with exceptions from the take prohibitions (ESA
section 9(a)(1)(B) and 9(a)(1)(C)) for activities that NMFS has
determined to be adequately protective of the Southern DPS.
The comparative analysis of the alternatives is described in more
detail in the IRFA. In summary, the Full Action Alternative and
Alternative B (Proposed Action) are anticipated to affect the largest
number of industries, but the impacts Alternative B will have on those
industries is expected to be less severe because certain activities may
be allowed to continue (e.g., some habitat restoration, emergency
rescue, and research/monitoring activities) under this alternative.
Alternatives A and C are anticipated to affect a smaller number of
industries than the Full Action Alternative and Alternative B. For
reasons similar to those explained above, Alternative C is expected to
have a less severe impact on the affected industries than Alternative
A. The No Action Alternative will have no effect on industries. We
invite comments on the alternative contained in this proposed rule and
on whether there is a preferable alternative (including alternatives
not described here) that would meet the statutory requirements of ESA
section 4(d). We also solicit information regarding the impact that
alternative would have on your economic activity and why the
alternative is preferable.
Executive Order (E.O.) 12866 - Regulatory Planning and Review
The proposed ESA section 4(d) regulations addressed in this rule
have been determined to be not significant for the purposes of E.O.
12866. Section 1(b)(12) of E.O. 12866 also requires each agency to
write regulations that are easy to understand. We invite your comments
(see ADDRESSES) on how to make this proposed rule easier to understand,
including answers to questions such as the following: (1) Are the
requirements in the rule clearly stated? (2) Does the rule contain
technical language or jargon that interferes with its clarity? (3) Does
the format of the rule (grouping and order of sections, use of
headings, paragraphing, etc.) aid or reduce its clarity? (4) Would the
rule be easier to understand if it were divided into more (but shorter)
sections? (5) Is the description of the rule in the SUPPLEMENTARY
INFORMATION section of the preamble helpful in understanding the rule?
(6) What else could NMFS do to make the rule easier to understand?
E.O. 12988 - Civil Justice Reform
We have determined that this proposed rule does not unduly burden
the judicial system and meets the requirements of sections 3(a) and
3(b)(2) of E.O. 12988. We are proposing protective regulations pursuant
to provisions in the ESA using an existing approach that improves the
clarity of the regulations and minimizes the regulatory burden of
managing ESA listings while retaining the necessary and advisable
protections to provide for the conservation of threatened species.
E.O. 13175 - Consultation and Coordination With Indian Tribal
Governments
E.O. 13175 requires that if NMFS issues a regulation that
significantly or uniquely affects the communities of Indian tribal
governments and imposes substantial direct compliance costs on those
communities, NMFS must consult with those governments, or the Federal
Government must provide the funds necessary to pay the direct
compliance costs incurred by the tribal governments. This proposed rule
may impose substantial direct compliance costs on the communities of
Indian tribal governments within the range of this DPS. Accordingly,
the requirements of section 5(b) and (c) of E.O. 13175 may apply to
this proposed rule. Thus, we intend to inform potentially affected
tribal governments and to solicit their input on the proposed rule and
will continue coordination and discussions with interested tribes as
NMFS moves toward a final rule.
E.O. 13132 - Federalism
E.O. 13132 requires agencies to take into account any federalism
impacts of regulations under development. It includes specific
consultation directives for situations where a regulation will preempt
state law, or impose substantial direct compliance costs on state and
local governments (unless required by statute). Neither of those
circumstances is applicable to this proposed rule. In fact, this notice
proposes mechanisms by which NMFS, in the form of 4(d) exceptions to
take prohibitions, may defer to state and local governments where they
provide necessary protections for the Southern DPS.
Paperwork Reduction Act
Notwithstanding any other provision of the law, no person is
required to respond to, nor shall any person be subject to a penalty
for failure to comply with, a collection of information subject to the
requirements of the PRA, unless that collection of information displays
a currently valid OMB Control Number.
This proposed rule contains collection-of-information requirements
subject to the Paperwork Reduction Act (PRA) and which have been
submitted to OMB for review and approval. Public reporting burden per
response for this collection of information is estimated to average:
(1) 40 hours for development of a Fisheries Management and Evaluation
Plan; (2) 20 hours for development of a Tribal Fishery Management Plan;
(3) 40 hours for development of a State-sponsored scientific research
program; (4) 5 hours to prepare reports on emergency rescue, salvage or
disposal of Southern DPS fish; (5) 40 hours to prepare reports on
restoration activities; and (6) 40 hours to prepare reports on federal
and private-sponsored research and monitoring. These estimates include
the time for reviewing instructions, searching existing data sources,
gathering and maintaining the data needed, and completing and reviewing
the collection of information. We invite comments regarding these
burden estimates, or any other aspect of this data collection,
including suggestions for reducing the burden, to
[[Page 23835]]
NMFS (see ADDRESSES) and to OMB at the Office of Information and
Regulatory Affairs, Office of Management and Budget, Washington, DC.
20503 (Attention: NOAA Desk Officer).
National Environmental Policy Act (NEPA)
Whenever a species is listed as threatened, the ESA requires that
we shall issue such regulations as we deem necessary and advisable to
provide for its conservation. Accordingly, the promulgation of ESA
section 4(d) protective regulations is subject to the requirements of
NEPA, and we have prepared a draft Environmental Assessment (EA)
analyzing the proposed 4(d) regulations and alternatives. We are
seeking comment on the draft EA, which is available on the Federal
eRulemaking Portal web site (http://www.regulations.gov) or upon
request (see DATES and ADDRESSES, above).
E.O. 13211 - Energy Supply, Distribution, or Use
E.O. 13211 requires agencies to prepare Statements of Energy
Effects when undertaking certain actions. According to E.O. 13211,
Asignificant energy action'' means any action by an agency that is
expected to lead to the promulgation of a final rule or regulation that
is a significant regulatory action under E.O. 12866 and is likely to
have a significant adverse effect on the supply, distribution, or use
of energy. NMFS has determined that the energy effects are unlikely to
exceed the energy impact thresholds identified in E.O. 13211 because
this proposed rule is not significant under E.O. 12866, and the spatial
scope of this proposed rule overlaps with areas where protections for
listed salmon are in effect. It is likely that the modifications
required for salmon are similar enough to those that would be required
for the Southern DPS such that the proposed action is not a significant
energy action, and no Statement of Energy Effects is required.
List of Subjects in 50 CFR Part 223
Endangered and threatened species, Exports, Imports,
Transportation.
Dated: May 14, 2009.
James W. Balsiger,
Acting Assistant Administrator for Fisheries, National Marine Fisheries
Service.
For the reasons set out in the preamble, 50 CFR part 223 is
proposed to be amended as follows:
PART 223--THREATENED MARINE AND ANADROMOUS SPECIES
1. The authority citation for part 223 continues to read as
follows:
Authority: 16 U.S.C. 1531 1543; subpart B, Sec. 223.201 202
also issued under 16 U.S.C. 1361 et seq.; 16 U.S.C. 5503(d) for
Sec. 223.206(d)(9).
2. In subpart B of part 223, add Sec. 223.210 to read as follows:
Sec. 223.210 North American green sturgeon.
(a) Prohibitions. The prohibitions of section 9(a)(1)(A) through
9(a)(1)(G) of the ESA (16 U.S.C. 1538) relating to endangered species
apply to the threatened Southern Distinct Population Segment (DPS) of
North American green sturgeon listed in Sec. 223.102(c)(1).
(b) Exceptions. Exceptions to the take prohibitions described in
section 9(a)(1)(B) and (C) of the ESA (16 U.S.C. 1538(a)(1)(B) and (C))
applied in paragraph (a) of this section to the threatened Southern DPS
listed in Sec. 223.102(c) are described in paragraphs (b)(1) through
(b)(3) of this section.
(1) Scientific research and monitoring exceptions. The prohibitions
of paragraph (a) of this section relating to the threatened Southern
DPS listed in Sec. 223.102(c)(1) do not apply to ongoing or future
Federal, state, or private-sponsored scientific research or monitoring
activities if:
(i) The scientific research or monitoring activity complies with
required state reviews or permits.
(ii) The research or monitoring activity is directed at the
Southern DPS and is not incidental to research or monitoring of another
species.
(iii) Take of live mature adults in the lower Feather River from
the confluence with the Sacramento River to the Oroville Dam (rkm 116),
the lower Yuba River from the confluence with the Feather River to the
Daguerre Dam (rkm 19), or Suisun, San Pablo, and San Francisco Bays or
the Sacramento-San Joaquin Delta from the Golden Gate Bridge up into
the Sacramento River to Keswick Dam (rkm 483) occurs from July 1
through March 1 so as to substantially increase the likelihood that
uninterrupted upstream spawning migrations of adults will occur.
(iv) Take is non-lethal.
(v) Take involving the removal of any life stage of the Southern
DPS from the wild does not exceed 60 minutes.
(vi) Take does not involve artificial spawning or enhancement
activities.
(vii) A description of the study objectives and justification, a
summary of the study design and methodology, estimates of the total
non-lethal take of Southern DPS fish anticipated, estimates of
incidental take of other ESA listed species anticipated and proof that
those takes have been authorized by NMFS or the USFWS, identification
of funding sources, and a point of contact is reported to the NMFS
Southwest Regional Office in Long Beach at least 60 days prior to the
start of the study, or within 60 days after publication of the final
rule for ongoing studies.
(viii) Reports that include the total number of Southern DPS and
any other ESA listed species taken, information that supports that take
was non-lethal, and a summary of the project results is submitted to
the NMFS Southwest Regional Office in Long Beach on a schedule to be
determined by NMFS.
(ix) Research or monitoring that involves action, permitting or
funding by a Federal agency still complies with the requirements of ESA
section 7(a)(2) in order to ensure that the action will not jeopardize
the continued existence of the threatened Southern DPS.
(2) Enforcement exception. The prohibitions of paragraph (a) of
this section relating to the threatened Southern DPS listed in Sec.
223.102(c)(1) do not apply to any employee of NMFS, when the employee,
acting in the course of his or her official duties, takes the Southern
DPS listed in Sec. 223.102(c)(1) without a permit, if such action is
necessary for purposes of enforcing the ESA or its implementing
regulations.
(3) Emergency fish rescue and salvage exceptions. The prohibitions
of paragraph (a) of this section relating to the threatened Southern
DPS listed in Sec. 223.102(c)(1) do not apply to emergency fish rescue
and salvage activities that include aiding sick, injured, or stranded
fish, disposing of dead fish, or salvaging dead fish for use in
scientific studies, if:
(i) The activity complies with required state or other Federal
reviews or permits.
(ii) The activity is conducted by an employee or designee of NMFS
or the U.S. Fish and Wildlife Service (USFWS), any Federal land
management agency, or California Department of Fish and Game, Oregon
Department of Fish and Wildlife, Washington Department of Fish and
Wildlife, or Alaska Department of Fish and Game.
(iii) The activity occurs only because of emergency situations that
result from natural disasters, national defense, or security
emergencies (see Sec. 402.05 of this title).
(iv) The activity benefits the Southern DPS.
(v) Those carrying out the activity submit a report to the NMFS
Southwest Regional Office in Long Beach that includes, at a minimum,
the number
[[Page 23836]]
and status of fish handled and the location of rescue and/or salvage
operations within 30 days after conducting the emergency rescue.
(4) Habitat restoration exceptions. The prohibitions of paragraph
(a) of this section relating to the threatened Southern DPS listed in
Sec. 223.102(c)(1) do not apply to habitat restoration activities
including barrier removal or modification to restore water flows,
riverine or estuarine bed restoration, natural bank stabilization,
restoration of native vegetation, removal of non-native species, or
removal of contaminated sediments, that reestablish self-sustaining
habitats for the Southern DPS, if:
(i) The activity complies with required state and Federal reviews
and permits.
(ii) Those carrying out the activity submit a detailed description
of the restoration activity to the NMFS Southwest Regional Office in
Long Beach at least 60 days prior to the start of the restoration
project which includes: the geographic area affected; when activities
will occur; how they will be conducted; and the severity of direct;
indirect, and cumulative impacts of activities on the Southern DPS;
identification of funding sources; demonstration that all state and
federal regulatory requirements have been met; a description of methods
used to ensure that the likelihood of survival or recovery of the
listed species is not reduced; a plan for minimizing and mitigating any
adverse impacts to Southern DPS spawning or rearing habitat; an
estimate of the amount of incidental take of the listed species that
may occur and a description of how that estimate was made; a plan for
effective monitoring and adaptive management; a pledge to use best
available science and technology when conducting restoration
activities; and a point of contact.
(iii) Those carrying out the activity submit progress reports that
include the total number of Southern DPS taken, information regarding
whether the take was lethal or non-lethal, a summary of the status of
the project, and any changes in the methods being employed, to the NMFS
Southwest Regional Office in Long Beach on a schedule to be determined
by NMFS.
(iv) An activity that involves action, permitting or funding by a
federal agency complies with the requirements of ESA section 7(a)(2) in
order to ensure that the action will not jeopardize the continued
existence of the threatened Southern DPS.
(c) Exemptions via ESA 4(d) program approval. Exemptions from the
take prohibitions described in section 9(a)(1)(B) and (C) of the ESA
(16 U.S.C. 1538(a)(1)(B) and (C)) applied in paragraph (a) of this
section to the threatened Southern DPS listed in Sec. 223.102(c) are
described in paragraphs (c)(1) through (c)(3) of this section.
(1) Scientific research and monitoring exemptions. The prohibitions
of paragraph (a) of this section relating to the threatened Southern
DPS listed in Sec. 223.102(c)(1) do not apply to ongoing or future
state-sponsored scientific research or monitoring activities that are
part of a NMFS-approved, ESA-compliant state 4(d) research program
conducted by, or in coordination with, state fishery management
agencies (California Department of Fish and Game , Oregon Department of
Fish and Wildlife, Washington Department of Fish and Wildlife , or
Alaska Department of Fish and Game ), or as part of a monitoring and
research program overseen by, or coordinated by, one of these agencies.
State 4(d) research programs must meet the following criteria:
(i) Descriptions of the ongoing and future 4(d) research or
monitoring activity, as described in paragraph (c)(1)(ii) of this
section, must be received by the NMFS Southwest Regional Office in Long
Beach within 120 days after publication of the final 4(d) rule. This
exception to the section 9 take prohibitions expires if the proposal is
rejected as insufficient or is denied.
(ii) Descriptions of ongoing and future state-supported research
activities must include the following information and should be
submitted to NMFS by the State: an estimate of total direct or
incidental take; a description of the study design and methodology; a
justification for take and the techniques employed; and a point of
contact.
(iii) NMFS will provide written approval of a state 4(d) research
program.
(iv) The State agency will provide an annual report to NMFS that,
at a minimum, summarizes the number of Southern DPS green sturgeon
taken directly or incidentally, and summarizes the results of the
project.
(2) Fisheries exemptions. The prohibitions of paragraph (a) of this
section relating to the threatened Southern DPS listed in Sec.
223.102(c)(1) do not apply to fisheries activities that are conducted
in accordance with a NMFS-approved Fishery Management and Evaluation
Plan (FMEP). If NMFS finds that an FMEP meets the criteria listed
below, a letter of concurrence which sets forth the terms of the FMEP's
implementation and the duties of the parties pursuant to the FMEP, will
be issued to the state.
(i) An FMEP must prohibit retention of green sturgeon (i.e. zero
bag limit); set maximum incidental take levels, include restrictions to
minimize incidental take of the green sturgeon (e.g., temporal/spatial
restrictions, size of fish, gear used); provide a biologically based
rationale demonstrating that the incidental take management strategy
will not significantly reduce the likelihood of survival or recovery;
include effective monitoring and evaluation plans; provide for
evaluating monitoring data and making revisions to the FMEP; provide
for effective enforcement and education; and report the amount of
incidental take and summarize the effectiveness of the FMEP to NMFS on
a biannual basis.
(ii) The ESA section 9(a)(1)(B) and (a)(1)(C) take prohibitions
will not apply to ongoing commercial and recreational fisheries
activities after publication of the final rule, for up to 120 days, if
a letter of intent to develop an FMEP that is protective of green
sturgeon has been received by NMFS within 30 days after the final rule
is published in the Federal Register. The exemption will expire if the
letter of intent is rejected without further review of a FMEP. If the
letter of intent is received within 30 days of publication of the final
4(d) rule in the Federal Register, a final FMEP must be received by
NMFS within 120 days from the date of receipt of the letter of intent.
Ongoing commercial and recreational fisheries activities may continue
until NMFS issues a letter of concurrence or denial for final FMEPs.
(iii) NMFS' will provide a public comment period ([gteqt] 30 days)
before approval of new or amended FMEPs; provide a letter of
concurrence for approved FMEPs that specifies the implementation and
reporting requirements; evaluate FMEPs on a regular basis and identify
changes that would improve their effectiveness; and provide a public
comment period ([gteqt] 30 days) before withdrawing approval of an
FMEP.
(3) Tribal exemptions. The prohibitions of paragraph (a) of this
section relating to the threatened Southern DPS listed in Sec.
223.102(c)(1) do not apply to fishery harvest or other activities,
undertaken by a tribe, tribal member, tribal permittee, tribal
employee, or tribal agent in Willapa Bay, WA, Grays Harbor, WA, Coos
Bay, OR, Winchester Bay, OR, Humboldt Bay, CA, and any other area where
tribal treaty fishing occurs, if those activities are compliant with a
tribal resource management plan (Tribal Plan), provided that the
Secretary determines
[[Page 23837]]
that implementation of such Tribal Plan will not appreciably reduce the
likelihood of survival and recovery of the Southern DPS. In making that
determination the Secretary shall use the best available biological
data (including any tribal data and analysis) to determine the Tribal
Plan's impact on the biological requirements of the species, and will
assess the effect of the Tribal Plan on survival and recovery,
consistent with legally enforceable tribal rights and with the
Secretary's trust responsibilities to tribes.
(i) A Tribal Plan may include, but is not limited to, plans that
address fishery harvest, artificial production, research, or water or
land management, and may be developed by one tribe or jointly with
other tribes. The Secretary will consult on a government-to-government
basis with any tribe that so requests and will provide, to the maximum
extent practicable, technical assistance in examining impacts on the
Southern DPS as tribes develop Tribal Plans. A Tribal Plan must specify
the procedures by which the tribe will enforce its provisions.
(ii) Where there exists a Federal court proceeding with continuing
jurisdiction over the subject matter of a Tribal Plan, the plan may be
developed and implemented within the ongoing Federal Court proceeding.
In such circumstances, compliance with the Tribal Plan's terms shall be
determined within that Federal Court proceeding.
(iii) The Secretary shall seek comment from the public on the
Secretary's pending determination whether or not implementation of a
Tribal Plan will appreciably reduce the likelihood of survival and
recovery of the listed Southern DPS.
(iv) The Secretary shall publish notification in the Federal
Register of any determination regarding a Tribal Plan and the basis for
that determination.
(d) Affirmative defense. In connection with any action alleging a
violation of the prohibitions of paragraph (a) of this section with
respect to the threatened Southern DPS of North American green sturgeon
listed in Sec. 223.102(c)(1), any person claiming that their take is
authorized via methods listed in paragraph (b) of this section shall
have a defense where the person can demonstrate that the take
authorization is applicable and was in force, and that the person fully
complied with the take authorization requirements at the time of the
alleged violation. This defense is an affirmative defense that must be
raised, pleaded, and proven by the proponent. If proven, this defense
will be an absolute defense to liability under section 9(a)(1)(G) of
the ESA with respect to the alleged violation.
[FR Doc. E9-11945 Filed 5-20-09; 8:45 am]
BILLING CODE 3510-22-S