[Federal Register Volume 65, Number 250 (Thursday, December 28, 2000)]
[Notices]
[Pages 82447-82451]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 00-33076]
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DEPARTMENT OF TRANSPORTATION
Coast Guard
[USCG-2000-7206]
Voluntary Guidelines on Recreational Activities To Control the
Spread of Zebra Mussels and Other Aquatic Nuisance Species
AGENCY: Coast Guard, DOT.
ACTION: Notice of issuance.
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SUMMARY: The Coast Guard makes available this final version of the
voluntary guidelines for persons engaged in water-related recreational
activities (e.g., boating and fishing) to help control the spread of
aquatic nuisance species (ANS). The Coast Guard must issue these
guidelines per the recommendations prepared by the Aquatic Nuisance
Species Task Force.
DATES: These voluntary guidelines are effective January 29, 2001.
ADDRESSES: The Docket Management Facility maintains the public docket
for this notice. Comments and material received from the public are a
part of this docket and are available for inspection or copying at room
PL-401, on the Plaza level of the Nassif Building, 400 Seventh Street
SW., Washington, DC, between 9 a.m. and 5 p.m., Monday through Friday,
except Federal holidays. You may also find this docket on the Internet
at http://dms.dot.gov.
FOR FURTHER INFORMATION CONTACT: For questions on this notice or
associated guidelines, call Lieutenant junior grade JoAnne Hanson,
Project Manager, Office of Operating and Environmental Standards (G-
MSO), Coast Guard, telephone, 202-267-2079. For questions on viewing
materials in the docket, call Dorothy Beard, Chief, Dockets, Department
of Transportation, telephone 202-366-9329.
SUPPLEMENTARY INFORMATION:
What Is the Regulatory History of the Voluntary Guidelines?
On April 13, 2000, we published a notice and request for comments
entitled ``Voluntary Guidelines on Recreational Activities to Control
the Spread of Zebra Mussels and Other Aquatic Nuisance Species'' in the
Federal Register (65 FR 19953). We received four comment letters. On
May 4, 2000, we published a correction notice in the Federal Register
(65 FR 25980) citing minor editorial corrections to the notice and
request for comments. No public hearing was requested and none was
held.
What Comments Did the Coast Guard Receive in Response to Its Notice
and Request for Comments and What Changes, if Any, Were Made to the
Voluntary Guidelines as a Result of These Comments?
We received four comment letters in response to the notice and
request for comments. Each of the four comment letters expresses
support for the proposed guidelines, including the distribution of
educational and outreach materials.
One comment proposes that the Coast Guard work with associations,
educational institutions, or agencies that conduct education and
outreach on recreational activities as part of their overall mission.
As a member of the Aquatic Nuisance Species Task Force (ANSTF), the
Coast Guard is represented on the Task Force's Communication, Education
and Outreach Committee. This committee was established to provide the
Task Force with a way to support the congressional mandates through
outreach campaigns. The committee is currently working on creating a
National Aquatic Nuisance Species Campaign and these voluntary
guidelines will play
[[Page 82448]]
an important role in that effort. The Coast Guard will also rely on the
Coast Guard Auxiliary to promote these guidelines to the boating public
through their boating safety courses.
One comment suggests clarifying the term ``natural resource
managers and others'' used in the guidelines under the heading ``What
activities do the voluntary guidelines address and what are the
recommended procedures?''
The Coast Guard intends for the various county, regional, and State
agencies to use the voluntary guidelines as basic guidelines to
incorporate into their own aquatic nuisance species materials, which
they can distribute in their areas, including specific points of
contact.
One comment suggests that the Coast Guard purchase public service
television spots to televise the educational videos. The comment also
suggests that we make the guidelines available on the Coast Guard's web
page.
As noted previously, as a member of the ANSTF's Communication,
Education, and Outreach Committee, the Coast Guard is involved in the
development of a national campaign to highlight these voluntary
guidelines. A variety of outreach materials are being developed to
publicize the guidelines. We expect televised publicity to be
considered as well. The guidelines are currently available on the Coast
Guard's web page.
One comment suggests using a species other than the spiny water
flea to illustrate the efficacy of drying because the spiny water
flea's resting stage eggs, which it produces seasonally, can tolerate
drying indefinitely, although the adult female cannot.
In response to this comment, the ANSTF Recreational Activities
Committee (RAC) has recommended that we change the wording at the end
of paragraph (e), entitled ``Boating,'' under the ``Pathway-Specific
Guidelines'' heading to read as follows: ``* * * reduce the risk * * *
'' instead of ``* * * prevent the transport * * *'' We have made this
wording change.
One comment suggests that, in the first bullet under ``Never do the
following,'' under ``Generic Guidelines,'' we remove the word ``from''
and add the words ``to or from.'' The sentence would then read as
follows: ``Never transport plants, animals, mud, or water to or from
lakes, rivers, wetlands, and coastal waters.'' We have revised the
wording under the ``Generic Guidelines'' based on this suggestion.
Why Is the Coast Guard Issuing Voluntary Guidelines?
To comply with the National Invasive Species Act of 1996 (NISA), we
are issuing voluntary guidelines for recreational activities to control
the spread of zebra mussels and other Aquatic Nuisance Species (ANS).
These guidelines will be explained in pamphlets, videos, and other
types of outreach materials.
The voluntary guidelines in this notice are based on the ones
drafted and recommended by the RAC. The guidelines developed by the
Committee are available in the docket and may be accessed on the
Internet at http://dms.dot.gov.
What Are Aquatic Nuisance Species (ANS)?
ANS are organisms introduced into non-native habitats and are often
freed from the natural predators, parasites, pathogens, and competitors
that have kept them in check. Once established, these organisms can
displace native species; they can impede municipal, industrial, and
private water-intake systems; and they can degrade aquatic ecosystems.
The introduction of most ANS is the work of humans. In some cases,
this is intentional, but, in many, it is accidental. In addition to
overland transport of boats, which has long been identified as a key
dispersal pathway, there are many others. The other human activities
that can disperse ANS include angling, scuba diving, and waterfowl
hunting.
Establishing these final voluntary guidelines will help to promote
good habits that will control the spread of ANS. Surveys have shown
that participants in recreational activities will take necessary
precautions if they know what to do. Conversely, they will not take
precautions unless they know what to do.
What Is the Purpose of the Voluntary Guidelines?
The voluntary guidelines will give the public clear, concise
information on how to avoid the transport of ANS. These voluntary
guidelines provide specific procedures that individuals engaged in the
corresponding recreational activity can follow so they will not
accidentally transport ANS.
What Activities Do the Voluntary Guidelines Address and What Are
the Recommended Procedures?
These voluntary guidelines address the following water-related
recreational activities: Scuba diving; waterfowl hunting; harvesting of
bait by recreational anglers; angling; boating; operating seaplanes;
and operating personal watercraft. These voluntary guidelines are
intended to assist natural resource managers and others involved in
educating individuals who participate in these recreational activities
about the problems associated with the spread of ANS in the United
States.
Voluntary Guidelines for Recreational Activities To Control the
Spread of Zebra Mussels and Other Aquatic Nuisance Species
Generic Guidelines
Some guidelines are appropriate for any recreational activity
associated with water. The generic preventive-guidelines that follow
apply to most recreational activities occurring in marine and inland
waters. In addition to these guidelines, States and provinces may
include specific laws and guidelines for their areas.
Always do the following:
Always inspect equipment (in the broadest sense, e.g.,
boats, planes, trailers, decoy anchors, SCUBA gear, and lures) for
visible plants and animals before transporting.
Always remove visible plants and animals from equipment
(expel plants, animals, and water from internal parts).
Always drain water from equipment before transporting.
Always clean equipment that has been in infested waters
before placing it in other waters (see the ``Pathway-specific
guidelines'' section for specific methods).
Always report questionable species to your resource agency
for identification. Information is available from many sources about
identification of ANS; however, specimens are needed to confirm
sightings. Many jurisdictions have different rules regarding possession
and transport. Always ask your local natural resources management
agency for instructions.
Avoid the following:
Transporting plants, animals, mud, or water to or from
lakes, rivers, wetlands, and coastal waters.
Releasing animals or plants (e.g., aquarium species, bait,
or water garden plants) into the wild unless you release them into the
same waterbody or location where the species came from.
Pathway-Specific Guidelines
These guidelines cover recreational activities that are potential
pathways for transferring ANS. Individuals engaged in these activities
should follow these guidelines to help prevent the spread of ANS. You
should note that States and
[[Page 82449]]
provinces may add to these voluntary guidelines their own related laws
and guidelines, if any, regarding transport or possession of ANS.
(a) Scuba Diving
You can unintentionally transport ANS, such as the zebra mussel,
spiny water flea, and Eurasian water milfoil, from one body of water to
another on your scuba-diving gear. You should take precautions to
reduce the risk of spreading these unwanted species, especially when
diving in different waters on the same or consecutive days.
Many scuba divers believe that zebra mussels have benefited the
sport by improving visibility in the waters they inhabit. They soon
learn, however, that geological formations and shipwrecks that once
attracted divers are encrusted with layers of zebra mussels, which
obscure these objects. The harm to the environment, the fisheries, and
industrial, municipal, and private water intakes far outweighs any
benefit.
Any objects removed from the water have the potential of
introducing ANS to new waters. By adhering to the guidelines that
follow, you can help prevent the spread of ANS when you scuba dive, and
you can help protect the environment from the harmful impacts of these
species. Guidelines:
Inspect your equipment.
Remove any plants, mud, or animals that are visible before
leaving all waters.
Drain water from buoyancy compensator (bc), regulator,
tank boot, and any other equipment that may hold water before leaving
all waters.
ANS can survive for a period of time on wet scuba gear or
in water. Therefore, do at least one of the following:
(1) Dry your suit and all equipment completely before diving in
different waters, and rinse the inside of your bc with hot or salted
water as described in items (2) and (3), which immediately follow.
(2) Submerge and wash your suit and equipment, and rinse the inside
of your bc with hot water (at least 40 deg.C or 104 deg.F).
(3) Submerge and wash your suit and equipment in a tub or tote
containing salted water (\1/2\ cup of salt dissolved in one gallon of
water); rinse the inside of your bc with the salted solution; and rinse
your equipment with clean water.
(b) Waterfowl Hunting
Nonindigenous ANS such as the zebra mussel, purple loosestrife, and
Eurasian water milfoil can damage habitat for fish, waterfowl, and
other wildlife. Waterfowl hunters should be aware that it is possible
to inadvertently spread ANS from one lake or wetland to another via
boats, motors, trailers, and decoys. Waterfowlers should assume that
any fragments of aquatic plants could be potentially harmful and should
not be transported from one wetland, lake, river, or coastal area to
another. In addition, zebra mussels and their microscopic larvae can
attach to aquatic plants. If fragments of these plants are transported,
they can inadvertently transport zebra mussels to other waters. By
following the guidelines on recreational activities, you can help
prevent the spread of ANS via waterfowl hunting. Guidelines:
Before the hunting season--
Switch to elliptical, bulb-shaped, or strap anchors on
decoys, which avoid collecting submerged and floating aquatic plants;
or
If boats are moored in waters infested with zebra mussels,
use the following tips to remove or kill zebra mussels or other aquatic
animals and plants that might be in or on your boat:
(1) Remove any visible zebra mussels from the boat and wash and
rinse the boat with hot water; or
(2) Spray the boat with high-pressure water; or
(3) Dry all parts of the boat for at least 5 days before placing it
into another waterbody.
After hunting--
Inspect waders or hip boots; remove aquatic plants; and,
where possible, rinse mud from them before leaving the waters;
Remove aquatic plants, animals, and mud that are attached
to decoy lines or anchors; and
Drain the water from boats before transporting to other
waters.
Between hunting trips--
Inspect equipment for any aquatic plants, animals, and mud
not removed after hunting; remove and dispose of them on land away from
the waters; and
Follow the guidelines for boaters in paragraph (e).
(c) Recreational Anglers' Harvest of Live Bait (Non-Commercial Harvest)
The guidelines that follow apply to the non-commercial harvesting
of live bait by recreational anglers.
Nonindigenous species can lodge in nets and other equipment used to
harvest baitfish and can be unintentionally transported into non-
infested waters. Some species can survive up to 2 weeks out of water
and remain viable when dislodged into another waterbody. Non-target ANS
species like ruffe and round goby, as well as fragments of aquatic
nuisance plants, such as hydrilla or Eurasian water milfoil, can be
harvested along with target baitfish species. If such species are
transferred to non-infested waters, they can have harmful effects on
native fish populations. To help prevent the transfer of these species,
you should conduct the procedures that follow during or after the
harvest of live bait for personal use.
Guidelines:
Inspect harvested live bait for non-target species, and
remove them where harvested.
Always dispose of unwanted live bait on land (away from
contact with waters) before leaving the waters. Never release live bait
into another body of water or move aquatic plants or animals from one
waterbody into a different waterbody.
Remove all aquatic plants from boats, trailers, nets, or
other equipment while on shore before leaving the water-body access.
Before reusing nets, roll out, hand clean, and dry them.
Drain water from boats (cooling stem of motors) and
equipment (bilge pump, tubs, live wells, etc.) before leaving any
waterbody access.
Never use water from infested waters to transport live
bait to other waters. In many States and provinces, live bait harvested
from designated infested waters is illegal. Check with your local State
natural resource agency before you collect live bait.
In areas where harvest of bait from infested waters is
legal, avoid using the same equipment in infested and non-infested
waters. Some aquatic nuisance species once removed from infested waters
can survive up to two weeks in a moist environment. By drying surfaces
where they can be lodged or attached, you can substantially reduce the
risk of transporting them in boats and equipment.
Rinse all equipment, including boats and trailers, with
tap water and dry them for as long as possible, but for at least 5 days
before re-use, especially in other waters. Before re-use, you should
roll out nets, hand clean them, and dry them for a minimum of 10 days,
or freeze them for 2 days.
The following applies to disinfection, specific to zebra
mussels, of equipment that is difficult to treat with drying and
washing methods (use these methods away from the waterbody):
(1) As an added equipment treatment, a dip of 100 percent vinegar
for 20 minutes can kill small zebra mussels and may be effective
against other ANS.
(2) Treatment with other chemicals such as a 1-percent solution of
table salt
[[Page 82450]]
for 24 hours can be as effective as a dip of vinegar.
The recipes provided in the following table are for a 1-percent
solution of table salt (sodium chloride) treatment in water.\1\
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\1\ Adapted from ``Fisheries Scientist's Pocket Reference''
booklet by Iowa Chapter of the American Fisheries Society, 1991, by
Doug Jensen, University of Minnesota Sea Grant Program.
------------------------------------------------------------------------
Cups of
Gallons of water salt *
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5.......................................................... \2/3\
10......................................................... 1\1/4\
25......................................................... 3
50......................................................... 6\1/4\
100........................................................ 12\2/3\
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* Based on 312 g per cup.
(d) Angling
The introduction of ANS can cause significant changes in freshwater
and marine ecosystems. Populations of prey and game fish can be
significantly harmed by the presence of species such as the sea
lamprey, Asian swamp eel, Chinese carp, and zebra mussel. Some aquatic
nuisance plants (e.g., hydrilla, Eurasian water milfoil, and water
hyacinth) may limit the viable fishing area of inland waters. You can
help prevent the transfer of ANS by following the guidelines in this
section whenever you engage in angling.
Guidelines
Dispose of unwanted live bait on land before leaving the
waterbody. Never release live bait into a different body of water or
move aquatic plants or animals from one waterbody to another.
Wash and dry your boat, tackle, downriggers, float tube,
waders, and other equipment to remove or kill harmful species that were
not visible at the boat launch.
Inspect all fish caught using seines, dipnets, or other
types of netting; remove and properly discard all non-target species.
(e) Boating
ANS, such as the zebra mussel, spiny water flea, and Eurasian water
milfoil, can be unintentionally transported through water-related
recreation activities because some ANS can survive many days out of
water. If you are a water recreationalist (watercraft users), there are
some important actions you can take to reduce the risk of transport of
ANS from one waterbody to another.
Guidelines
Before leaving all waters, inspect your boat (sailboats
check centerboard and bilgeboard wells, and keel boats check the
rudder-post area), trailer (check axles, runners, lights, and rollers),
and other boating equipment (check anchors, water-skis, or other tow
lines), and remove any plants, animals, or mud that are visible (see
diagram 1).
Drain water from the motor, livewell, bilge, and transom
wells while on land and before leaving all waters.
Wash and dry your boat, tackle, fishing lines,
downriggers, trailer, and other boating equipment to kill harmful
species that were not visible at the boat launch. You can do this on
your way home or once you arrive home.
Before you transport to other waters, do one of the
following:
(1) Rinse your boat and boating equipment with hot (greater than 40
deg.C or 104 deg.F) tap water.
(2) Spray your boat and trailer with high-pressure water.
(3) Dry your boat and equipment for at least 5 days.
[GRAPHIC] [TIFF OMITTED] TN28DE00.009
For your information, the U.S. Fish and Wildlife Service, in
conjunction with Canadian officials and other partners, are
implementing the 100th Meridian Initiative, which focuses on preventing
the westward spread of zebra mussels and other ANS by boat inspections
and by dissemination of posters, brochures, and other information about
ANS. There are many other State and Federal initiatives focusing on
controlling the spread of ANS. Consult your local Fish and Wildlife
Service facility or other appropriate State or Federal natural resource
management agency for additional information.
(f) Seaplanes
Many ANS, such as the zebra mussel and Eurasian water milfoil, can
be unintentionally transported from one waterbody to another on the
floats of seaplanes. Therefore, it is important to clean the aircraft
to remove ANS before traveling, rather than after landing at new
locations. In addition, it is important for you to incorporate the
procedures listed here into the operation of your seaplane. However,
plane safety is the first priority when considering and following these
guidelines.
Guidelines:
Before entering the aircraft--
Inspect and remove aquatic plants from the floats, wires
or cables, and water rudders;
Pump floats, which may contain infested water; and
If moored in waters infested by zebra mussels for extended
periods, check the transom, chine, bottom, wheel wells, and step area
of floats (see diagram 2). If zebra mussels are present on the floats,
you can use (any) one of the following methods to remove or kill them:
(1) Wash the floats with hot water.
(2) Spray the floats with high-pressure water.
(3) Dry all parts of the floats for at least 5 days. Before
takeoff--
[[Page 82451]]
Avoid taxiing through heavy surface growths of aquatic
plants before takeoff;
Raise and lower water rudders several times to clear off
plants. This will also minimize cable stretch and improve the
effectiveness of the rudders for steering.
After takeoff--
Raise and lower water rudders several times to free
fragments of aquatic plants while over the waters you are leaving or
while over land; and
If aquatic plants remain visible on floats or water
rudders, return to the lake and remove the plants.
Storage or mooring--
Remove aircraft from the water, as is often done at
seaplane bases, and allow all parts of the floats to dry. A few days of
hot, summer temperatures will kill adult zebra mussels (longer drying
times of up to 10 days are required to kill adult mussels during cool,
humid weather); and *
Aircraft moored for extended periods in zebra-mussel-
infested waters may have zebra mussels attached to the floats and
should be cleaned regularly. In remote locations, where zebra mussels
are present, but where there are no provisions for drying, spraying, or
treating the floats with hot water, the best option available for
preventing the spread of the mussels is to hand-clean the submerged
portions of floats with a scrub brush and to physically remove adult
mussels. (Aircraft moored for extended periods in zebra-mussel-infested
waters may have zebra mussels attached to the floats and should be
cleaned regularly.)
[GRAPHIC] [TIFF OMITTED] TN28DE00.010
(g) Personal Watercraft
Personal watercraft that have jet-drive systems require some extra
precautions to avoid ANS. A pump pulls water in through an opening
under the craft, and the impeller (an internal propeller) forces water
out, moving the craft forward. ANS can easily get lodged in the jet-
drive system and get transported if the watercraft is taken from one
waterbody to another. A small piece of Eurasian water milfoil, or other
ANS, caught in the impellers can infest a new lake or river. Zebra
mussels can survive in excess water in the jet drive and spread to
other waters. By applying the following guidelines, you can help
prevent the transfer of ANS via your personal watercraft.
Guidelines:
In the water--
Avoid running the engine through aquatic plants near the
boat access; and
Push or winch the watercraft up on the trailer without
running the engine.
On the trailer--
After you pull the watercraft from the water, start the
engine for 5 to 10 seconds to blow out any excess water and vegetation.
(The dark, damp, enclosed area of the impeller provides an ideal
environment for aquatic nuisance plants to survive.); and
After the engine stops, pull plants out of the steering
nozzle. Inspect your trailer and any other sporting equipment for
fragments of aquatic plants, and remove them before you leave the
access area.
After trailering and before re-use--
Wash and dry your watercraft and equipment to kill or
remove harmful species that you did not see at the boat launch. You can
do this on your way home or once you arrive home. Choose one of the
following methods of disinfection before transporting to another
waterbody:
(1) Rinse your watercraft and other equipment with hot (greater
than 40 deg.C or 104 deg.F) tap water.
(2) Spray your watercraft and trailer with high-pressure water.
(3) Dry your watercraft and equipment for at least 5 days.
Dated: December 19, 2000.
R.C. North,
U.S. Coast Guard, Assistant Commandant for Marine, Safety and
Environmental Protection.
[FR Doc. 00-33076 Filed 12-27-00; 8:45 am]
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