[Federal Register Volume 66, Number 191 (Tuesday, October 2, 2001)]
[Proposed Rules]
[Pages 50148-50159]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 01-24521]


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DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

50 CFR Parts 222 and 223

[Docket No.000320077-1177-02; I.D.062501B]


Endangered and Threatened Wildlife; Sea Turtle Conservation 
Requirements

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

ACTION: Proposed rule; request for comments.

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SUMMARY: NMFS proposes to amend the regulations protecting sea turtles 
to enhance their effectiveness in reducing sea turtle mortality 
resulting from shrimp trawling in the Atlantic and Gulf Areas of the 
southeastern United States. Turtle excluder devices (TEDs) have proven 
to be effective at excluding sea turtles from shrimp trawls; however, 
NMFS has determined that modifications to the design of TEDs need to be 
made to exclude leatherbacks and large, sexually mature loggerhead and 
green turtles; several approved TED designs are structurally weak and 
do not function properly under normal fishing conditions; and 
modifications to the trynet and bait shrimp exemptions to the TED 
requirements are necessary to decrease lethal take of sea turtles. 
These proposed amendments are necessary to protect endangered and 
threatened sea turtles in the Atlantic and Gulf Areas.

DATES: Written comments will be accepted through November 16, 2001.

ADDRESSES: Written comments on this action, the draft Environmental 
Assessment/Regulatory Impact Review Regulatory Flexibility Act Analysis 
(EA/RIR) and request for copies of the 1999 TED opening evaluation 
report should be addressed to the Chief, Endangered Species Division, 
Office of Protected Resources, NMFS, 1315 East-West Highway, Silver 
Spring, MD 20910. Comments may also be sent via fax to 301-713-0376. 
Comments will not be accepted if submitted via e-mail or the Internet.

FOR FURTHER INFORMATION CONTACT: Robert Hoffman (ph. 727-570-5312, fax 
727-570-5517, e-mail [email protected]), or Therese A. Conant 
(ph. 301-713-1401, fax 301-713-0376, e-mail [email protected]).

SUPPLEMENTARY INFORMATION:

Background

    All sea turtles that occur in U.S. waters are listed as either 
endangered or threatened under the Endangered Species Act of 1973 
(ESA). The Kemp's ridley (Lepidochelys kempii), leatherback 
(Dermochelys coriacea), and hawksbill (Eretmochelys imbricata) are 
listed as endangered. The loggerhead (Caretta caretta) and green 
(Chelonia mydas) turtles are listed as threatened, except for breeding 
populations of green turtles in Florida and on the Pacific coast of 
Mexico, which are listed as endangered.
    The incidental take and mortality of sea turtles as a result of 
trawling activities, have been documented in the Gulf of Mexico and 
along the Atlantic seaboard. In 1990 the National Academy of Sciences, 
in a report titled Decline of the Sea Turtle: Causes and Prevention, 
estimated that between 33,000 and 44,000 loggerhead and Kemp's ridley 
sea turtles were being killed, per year, as a result of shrimp trawling 
activities. On June 27, 1987, (52 FR 24244) NMFS required TEDs in 
certain areas during certain times and further defined and expanded the 
required use of TEDs in the shrimp fishery on December 4, 1992, (57 FR 
57348). These rules and subsequent modifications are codified in 50 CFR 
223.206 and 50 CFR 223.207 and require most shrimp and summer flounder 
trawlers operating in the Southeastern U.S. (Atlantic Area, Gulf Area, 
and summer flounder sea turtle protection area) to have a NMFS-approved 
TED installed in each net that is rigged for fishing to provide for the 
escape of sea turtles. TEDs currently approved by NMFS include single-
grid hard TEDs and hooped hard TEDs conforming to a generic 
description, two types of special hard TEDs, the flounder TED and the 
Jones TED, and one type of soft TED, the Parker soft TED.
    The use of TEDs has contributed to the strong population increase 
for Kemp's ridley sea turtles. Kemp's ridleys are the smallest sea 
turtles, and adult size animals can pass through the current TED 
opening dimensions. Once the most critically endangered sea turtle, 
their nesting levels have increased from 700-800 per year in the mid-
1980's to over 6,000 nests in 2000. Since 1990, corresponding with the 
more widespread use of TEDs in U.S. waters, the total annual mortality 
(including natural mortality that cannot be controlled) for coastal 
Kemp's ridleys has been reduced by 44-50 percent (TEWG, 2000). NMFS 
believes that this demonstrates that the use of TEDs can have a 
significant impact on the survival and recovery of sea turtle species.
    Despite the demonstrated success of TEDs for some species of sea 
turtles, NMFS is concerned that TEDs are not adequately protecting all 
species and size classes of turtles. There is new information showing 
47 percent of stranded loggerheads and 1-7 percent of stranded green 
turtles are too large to fit through the current TED openings. 
Comprehensive scientific data on the body depths of these turtles were 
not available when the original TED sizes were specified. The original 
TED sizes were also much too small to allow leatherback sea turtles, 
the largest species, to escape. Instead, NMFS has attempted to address 
the incidental catch of leatherback turtles by trawlers through a 
regime of reactive closures that has proven complicated and 
incomprehensive. There is also concern about the status of these 
populations with stable or declining nesting numbers for the northern 
nesting population of loggerhead sea turtles (TEWG, 2000) and 
dramatically declining nesting of leatherback sea turtles on their main 
nesting grounds (NMFS SEFSC, 2001). NMFS is therefore proposing to 
modify the TED regulations to insure TEDs are capable of releasing 
large leatherback sea turtles and adult loggerhead and green turtles. 
These modifications will extend the protection TEDs afford smaller 
turtle species to all size classes of all sea turtle species.

Summary of Proposed Changes to the Sea Turtle Regulations

    NMFS is proposing to amend the regulations applicable to shrimp 
trawling in all inshore and offshore waters of the Atlantic and Gulf 
Areas to: (a) Require all hard TEDs to have a grid with a minimum 
inside measurement of 32-inch (81-cm) by 32-inch (81-cm); (b) require 
the use of either the double cover flap TED or a TED opening with a 
minimum of 71 inch (180 cm) straight-line stretched mesh; (c) disallow 
the use of the hooped hard TED; (d) disallow the use of weedless TEDs 
and Jones TEDs; (e) disallow the use of accelerator funnels; (f) 
require bait shrimpers to use TEDs in states where a state-issued bait 
shrimp license holder can also fish for food shrimp from the same 
vessel; (g) and require the use of tow times on small try nets. These 
changes are

[[Page 50149]]

proposed to be implemented 1 year after the final rule is published in 
the Federal Register.

Advanced Notice of Proposed Rule Making

    The measures proposed in this rule were based, in part, on comments 
received on an Advanced Notice of Proposed Rule Making (ANPR) published 
April 5, 2000 (65 FR 17852). NMFS announced in the ANPR that it was 
considering technical changes to the TED regulations, to effectively 
protect all life stages and species of sea turtles. Specific changes 
discussed were to increase the minimum size opening for TEDs, modify or 
decertify hooped hard TEDs and weedless TEDs, change the requirements 
for the types of flotation required, and modify the leatherback 
conservation zone regulations.
    NMFS received 23 responses to the request for comments on the ANPR. 
When appropriate, comments are grouped according to general subject 
matter, and references are made only to some groups or individuals, and 
not to all groups or individuals who may have made similar comments.
    Comment 1: Environmental organizations, Federal agencies, state 
agencies, state Sea Turtle Stranding and Salvage Network (STSSN) 
volunteers, and unaffiliated citizens believe that the openings of the 
current TEDs are too small and should be enlarged to allow larger 
turtles to escape. Some of these commenters believe that the size 
specified in the ANPR of 35 inches by 16 inches (89 cm by 41 cm) would 
not be adequate to protect large nesting turtles.
    Response: NMFS agrees with the need to make TED escape openings 
larger and is therefore proposing to increase the escape opening size 
of TEDs in all inshore and offshore waters of the Atlantic and Gulf 
areas. The size proposed in the ANPR of 35 inches by 16 inches (89 cm 
by 41 cm) was based on information from Epperly and Teas (1999) which 
used a linear regression formula to estimate body depth based on 
carapace width, and suggested that 99 percent of nesting loggerheads of 
the northern subpopulation had carapace widths equal to or less than 33 
inches (83.2 cm) and a corresponding depth of 15.7 inches (39.8 cm). 
However, carapace measurements recently collected by the South Carolina 
Department of Natural Resources (SCDNR) on actual nesting females of 
the northern loggerhead population showed 7 out of 90 had body depths 
greater than 16 inches (40.6 cm). Also significant numbers of the 
endangered leatherback turtle have been documented in inshore and 
offshore waters in the Atlantic and Gulf areas. Therefore, to protect 
all turtles, NMFS is proposing to require the use of the double cover 
flap TED or a TED opening with a minimum of 71-inch (180-cm) straight-
line stretched mesh (see Provisions of the Proposed Rule).
    Comment 2: Environmental organizations, Federal agencies and state 
agencies recommend the modification of the leatherback conservation 
zone regulations (60 FR 25260, May 12, 1995; 60 FR 25663, May 12, 1995) 
implemented as a result of the Leatherback Contingency Plan. These 
commenters believe that the response times in implementing emergency 
rules for closure of waters during leatherback migrations are too slow 
and that the surveying required to support these rules is frequently 
underfunded or too variable due to weather and water clarity. Also, 
some of these commenters believe the Gulf coast should be included in 
the Leatherback Contingency Plan.
    Response: NMFS is proposing the use of either the double cover flap 
TED or a TED opening with a minimum of 71-inch (180-cm) straight-line 
stretched mesh in all inshore and offshore waters in the Atlantic and 
Gulf Areas. Both of these TEDs have openings large enough to 
accommodate leatherbacks as well as large nesting loggerheads. This 
would eliminate the need for emergency rules and surveying.
    Comment 3: Commercial Fishermen of Lafitte do not want NMFS to 
prohibit the use of the hooped hard TED. They state that the hooped 
TED, known as the Coulon TED, not only excludes turtles but also works 
well as a finfish bycatch reduction device. The Coulon TED is a hooped 
hard TED with an escape opening of 34 inches (86 cm) by 27 inches (69 
cm) with the front hoop measuring 34 inches (86 cm) by 17 inches (43 
cm). The Commercial Fishermen of Lafitte state that the escape opening 
of this TED can be expanded to 35 inches (89 cm) by 27 inches (69 cm), 
with the front hoop measuring 35 inches (89 cm) by 17 inches (43 cm). 
According to a net maker in the area, approximately 50 fishing vessels 
are using this TED in Louisiana waters.
    Response: In order to protect the endangered leatherback and large 
loggerhead sea turtles, NMFS must ensure that all approved TEDs are 
capable of releasing these large turtles. The expanded version of the 
Coulon TED is not large enough to release large loggerhead and 
leatherback sea turtles. It would be impractical to use a hooped hard 
TED that would be large enough to release leatherback turtles.
    Comment 4: The Florida Fish and Wildlife Conservation Commission 
agrees with the need to make TED escape openings larger but feels NMFS 
should consider the economic burden of Florida's inshore shrimp fishery 
when considering the use of the leatherback modification and the 
increase of the standard grid size.
    Response: NMFS' gear specialists working on the east coast of 
Florida reported that the majority of inshore fishermen use grids 32 
inches (81 cm) and larger. NMFS is proposing to increase the grid size 
to a minimum inside measurement of 32 inches (81 cm) by 32 inches (81 
cm). Based on the information from the gear specialists this will not 
affect a large number of Florida inshore fishermen. The Florida inshore 
fishermen who use grids smaller than 32 inches (81 cm) will have 1 year 
to change to the new size grid. By delaying the implementation date to 
1-year after the final rule is published in the Federal Register, 
fishermen would be able to buy the new size grid as part of necessary 
gear replacement and thereby not add an additional cost.
    Comment 5: The United States Fish and Wildlife Service (USFWS) 
recommends the decertification of the hooped hard TED and the weedless 
TED and the abolishment of the TED exemption for bait shrimpers.
    Response: NMFS agrees with the USFWS on the need to disallow the 
use of the hooped hard TED and the weedless TED for the reasons 
described in the ANPR (65 FR 17852). The hooped hard TED is not widely 
used. NMFS' enforcement personnel report confusion with the differing 
regulatory requirements for escape openings for single grid and hooped 
hard TEDs. Weedless TEDs (a TED with the deflector bars not attached to 
the bottom of the grid frame) have been documented by NMFS enforcement 
with bent bars and spacing more than 4 inches (10 cm) apart. The bars 
of weedless TEDs appear to be easily bent during commercial use because 
of the inherent weakness in the design. NMFS' TED testing in 1996 
showed that weedless TEDs with the bars bent inward (to the rear of the 
TED hoop) failed to exclude any of the turtles exposed. NMFS is 
proposing to implement a requirement that the bars on hard TEDs be 
firmly attached to the frame at both ends, 1 year after the publication 
of the final rule in the Federal Register.
    NMFS also agrees with the USFWS that the bait shrimp exemption 
currently authorized under the sea turtle

[[Page 50150]]

conservation regulation represents a threat to sea turtles. NMFS 
enforcement and gear specialists have seen an increase in boats 
claiming to be bait shrimpers but possessing more than 32 lb (14.5 kg) 
of dead shrimp. In some cases, these shrimpers are using ``snap-in 
grids'' on their TEDs and claim to have used them while catching the 
dead shrimp but then taking the ``snap-in grid'' out and closing the 
escape opening to fish for bait shrimp. Snap-in grids do not meet the 
regulatory requirement for the installation of the grid into the trawl 
net because the grids are attached to the outside of the grid frame 
with a few strings, plastic tie wraps or bolts and not sewn into the 
trawl around the entire circumference of the TED with heavy twine (50 
CFR 223.207(a)(2)).
    NMFS originally authorized a bait shrimp exemption, which requires 
tow times to be less than 55 minutes, believing tow times would be 
self-regulating as a bait shrimper would want to limit tow times to 
ensure live catch. However, gear specialists have found increasing 
numbers of bait shrimpers selling shrimp for food. Landing dead shrimp 
would likely result in an increase in tow times beyond the shorter tows 
used to catch live bait. Tow time limits are extremely difficult to 
enforce and have only been authorized in limited cases where particular 
fishing practices limit the length of tows. NMFS believes that the bait 
shrimp exemption is unenforceable and represents an increased risk in 
lethal take of turtles. Therefore, NMFS is proposing to change the bait 
shrimp TED exemption. Since 1992, when the bait shrimp exemption was 
initially developed, TEDs have been used successfully in small, inshore 
shrimp nets. Many bait shrimpers already own and use TEDs when not 
operating under their bait shrimp licences. In some areas, bait 
shrimpers use other exempt gear or practices (e.g., barred roller 
trawls, hand-retrieved nets). Changes to the bait shrimp exemption 
would affect none of these other exemptions.
    Comment 6: Georgia Department of Natural Resources (GADNR) 
recommends the adoption of a single TED configuration for all areas at 
all times. The leatherback configuration should be the configuration 
adopted. According to GADNR, 30 percent of Georgia fishermen already 
use the leatherback modification full time because it is good at 
excluding trash fish and the long flap helps shrimp retention.
    Response: NMFS agrees with the GADNR on the value of the 
leatherback modification. The use of the leatherback modification (a 
TED opening with a minimum of 71-inch (180-cm) straight-line stretched 
mesh) or the double cover flap TED in all inshore and offshore waters 
will provide protection for all sea turtles. The current TED opening 
sizes do not afford protection for large sexually mature loggerhead and 
green turtles. Adoption of this proposed rule also will eliminate the 
need for the use of inefficient emergency rules and the leatherback 
conservation plan, which does not cover all areas where leatherback 
turtles can be found.
    Comment 7: The University of Georgia Marine Extension Service 
(UGMES) requested the water depths be specified at which spongex-type 
floats would not be allowed.
    Response: Upon further review of the TED float requirements, NMFS 
has decided not to propose amendments to them at this time due to the 
lack of testing of viable alternatives to spongex-type floats.
    Comment 8: The UGMES also requested that NMFS allow other methods 
of hole enlargement, such as the addition of a strip of webbing in the 
center of the forward section of the extension webbing, to help 
maintain the angle of the TED.
    Response: The use of a strip of webbing in the center of the 
forward section of the extension webbing to modify a TED with a 
leatherback size opening is not prohibited under current regulations. 
Also the double cover flap TED which can be used in-lieu of the 
leatherback modification has a smaller cut than the leatherback 
modification (the length of the leading edge of the escape opening cut 
must be no less than 56 inches (142 cm)). The double cover flap TED is 
composed of two equal size rectangular panels with an overlap of no 
more than 15 inches (38 cm) and each panel is no less than 58 inches 
(147 cm) wide. The panels can be sewn together only along the leading 
edge of the cut. The edge of the panels may be attached 6 inches (15 
cm) behind posterior edge of grid; the end of each panel must not 
extend more than 6 inches (15 cm) past the center of the bottom of the 
grid. These modifications make it easier to install TEDs on a smaller 
grid
    Comment 9: The Texas Shrimp Association (TSA) requested that shrimp 
loss data be evaluated and that NMFS determine what impact a 300-lb to 
1,200-lb (136-kg to 545-kg) leatherback turtle would have on any TED. 
TSA also asked whether the Epperly and Teas (1999) study was submitted 
for peer review. TSA questioned the need for a larger size opening in 
the western Gulf based on the fact that stranded turtles on the western 
Gulf, on average, are smaller than those on the Atlantic and eastern 
Gulf coasts.
    Response: In the summer of 2000, NMFS conducted seven trips to test 
the leatherback modification for shrimp loss in commercial conditions. 
The leatherback modification was compared with TEDs currently used in 
the Gulf of Mexico and the southeastern Atlantic. Four of the trips 
were conducted in the Gulf of Mexico, and three were conducted in the 
Atlantic. Shrimp loss for the four Gulf of Mexico trips showed a 3-
percent loss (trip #067), a 35-percent loss (trip #068), a 1-percent 
loss (trip #069), and a 2-percent loss (trip #073), while the three 
Atlantic trips combined showed a 3-percent shrimp loss (trips #070-
072). NMFS believes that shrimp loss percentage from trip #068 is an 
error and not indicative of actual shrimp loss. The 35-percent shrimp 
loss demonstrated on this trip is well above the range of 1 to 3 
percent demonstrated by the other six trips. NMFS believes that gear 
problems on trip #068 could have contributed to the 35-percent loss. 
The 1- to 3-percent loss on the other trips was not statistically 
significant from zero.
    NMFS cannot use live leatherback turtles for testing; however, NMFS 
believes a 300-lb to 1,200-lb (136-kg to 545-kg) leatherback will do 
much less damage to a TED and shrimp gear if it is allowed to escape.
    The Epperly and Teas (1999) study has not yet been peer reviewed; 
however, it is being submitted for publication in the scientific 
journal Fishery Bulletin and, as part of that process, will receive 
peer review.
    NMFS disagrees with the TSA's assessment that a larger size opening 
is not needed in the western Gulf of Mexico. Stranding records from 
1986 through 1997 show that 36 to 66 percent of loggerhead turtles 
stranded in the western Gulf were larger than the current minimum TED 
escape opening size, and records from 1986 through 1999 show that 170 
leatherback turtles were stranded in the western Gulf of Mexico.

Provisions of the Proposed Rule

Increase of the Minimum Size of the TED Opening in All Inshore and 
Offshore Waters of the Atlantic and Gulf Areas

    TEDs incorporate an opening, usually covered by a webbing flap, 
that allows sea turtles to escape from trawl nets. To be approved by 
NMFS, a TED design must be able to exclude small sea turtles during 
experimental TED testing conducted by NMFS. TEDs also must

[[Page 50151]]

meet generic criteria based upon certain parameters of TED design, 
configuration, and installation, including height and width dimensions 
of the TED opening through which the turtles escape. In the Atlantic 
Area, these requirements are currently 35 inches 
(89 cm) in width and 12 inches (30 cm) 
in height. In the Gulf Area, the requirements are 32 inches 
(81 cm) in width and 10 inches (25 cm) in height.
    NMFS proposes to require the use of the NMFS-approved double cover 
flap TED (approved May 14, 2001, 66 FR 24287) or a standard TED opening 
with a minimum of 71 inch (180 cm) straight-line stretched mesh 
measurement, with a resultant circumference of the opening being 142 
inches (361 cm) (formerly called the leatherback modification; approved 
May 12, 1995, 60 FR 25663) in both the Atlantic and Gulf Areas. Both of 
these TEDs have been tested for shrimp retention (see the response to 
comment 9 of this notice for shrimp retention data on the new standard 
TED and 66 FR 24287 for the double cover flap TED) and small turtle 
escapement (see 60 FR 25663 and 66 FR 24287).
    The double cover flap TED and the proposed standard TED were shown 
to be effective at excluding a prototype leatherback. Because testing 
with live leatherbacks is impossible, NMFS obtained the carapace 
measurements of 15 nesting female leatherback turtles and used these 
data to construct a pipe-framed model of a leatherback turtle measuring 
40 inches wide by 21 inches deep (102 cm by 53 cm). The leatherback 
model and a diver with full scuba gear were able to pass through the 
escape openings of these TEDs.
    Stranding data collected through the STSSN indicate that the 
proportion of large, mature loggerheads and greens that strand on 
coastal beaches appears to be greater than the proportion that would be 
expected given the size distribution of sea turtles found in nearshore 
waters. The disparity in size may be a result of the minimum size 
requirement for TED openings which allows only smaller turtles to 
escape. NMFS (Epperly and Teas, 1999; copies available see ADDRESSES) 
evaluated the size of TED openings in relation to the carapace width 
and body depth of stranded sea turtles and found that body depth, but 
not carapace width, was a factor in the turtle's ability to exit the 
TED opening. Up to 47 percent of the body depths for stranded 
loggerheads and 7 percent for green turtles exceeded the minimum height 
requirements for TED openings.
    Stranding data from 1986 through 1997 show that between 33 percent 
and 47 percent of all loggerhead turtles stranded had body depths 
greater than the minimum height of the TED opening. These percentages 
range from 33-66 in the western Gulf of Mexico, to 83-96 in the eastern 
Gulf of Mexico, to 23-40 in the Atlantic off the coast of the 
southeastern United States (Epperly and Teas, 1999). These same data 
also show that between 1 and 7 percent of all green turtles stranded 
had body depths greater than the minimum height of the TED opening. 
These percentages range from 0-3 in the western Gulf of Mexico, to 1-10 
in the eastern Gulf of Mexico, to 3-10 in the Atlantic off the coast of 
the southeastern United States (Epperly and Teas, 1999). Measurements 
done on South Carolina nesting beaches conducted by the SCDNR in the 
summer of 2000 on nesting loggerhead turtles showed 89 of the 90 
nesting turtles had body depths greater than the minimum TED opening in 
the Atlantic Area.
    This information indicates that current TED openings may be 
allowing continued high incidental take of large reproductive 
loggerhead and green turtles. Since this take is focused on pre-
reproductive and reproductive turtles, it may be precluding most, if 
not all, benefits these species may be receiving from the exclusion of 
small juveniles from shrimp trawls.
    The proposed use of a TED opening with a minimum of 71 inch (180.3 
cm) straight-line stretched mesh or the double cover flap TED would be 
large enough to exclude 100 percent of nesting loggerhead and green 
turtles based on the information in Epperly and Teas (1999) and the 
measurements of nesting loggerhead turtles taken by the SCDNR in the 
spring and summer of 2000. This is particularly important for 
loggerhead turtles, as population models indicate that a reduction in 
mortality in these size classes would result in the greatest annual 
population multiplication rate (Crouse et al., 1987; Hopewell, 1998).
    The Turtle Expert Working Group (TEWG 1998) identified four 
genetically separate nesting populations of loggerhead turtles in the 
southeastern United States. The health and recovery of the loggerhead 
turtle species is dependent on the health and recovery of each of these 
populations. It is believed that the northern nesting population may at 
best be stable and possibly may be in decline.
    Leatherback sea turtles are too large to fit through the standard 
size TED opening; when mature, they can weigh between 600 and 1,300 lb 
(273 and 591 kg). To address this issue, NMFS, in cooperation with the 
USFWS, South Carolina, Georgia, and Florida, developed the Leatherback 
Contingency Plan to reduce leatherback mortality in shrimp trawls, and, 
in 1995, NMFS established the leatherback conservation zone regulations 
to implement the Leatherback Contingency Plan (60 FR 25260, May 12, 
1995; 60 FR 25663, May 12, 1995). The Leatherback Contingency Plan 
established procedures to identify when and where TEDs with large 
escape openings should be used to protect leatherbacks during their 
annual, spring migration along the Atlantic seaboard. The waters north 
of Cape Canaveral, from Florida to the North Carolina-Virginia border, 
were identified as the leatherback conservation zone. Within this zone, 
weekly aerial surveys for leatherback sightings are conducted from 
January 1 through June 30 of each year. If sightings, in replicate 
surveys, exceed 10 leatherback turtles per 50 nautical miles (nm)(92.6 
km) of trackline, NMFS will close, for a 2-week period, waters within 
1 deg. lat. of the trackline to shrimp trawlers unless they use a TED 
modified with the leatherback exit opening.
    In 1999, NMFS became concerned that the leatherback conservation 
zone regulation was not adequate to protect leatherbacks. In the spring 
of 1999, NMFS implemented the 2-week closures in areas of South 
Carolina and North Carolina (64 FR 25460, May 12, 1999; 64 FR 27206, 
May 19, 1999; 64 FR 28761, May 27, 1999; 64 FR 29805, June 3, 1999). In 
implementing the regulation, it was determined that replicate surveys 
were not always feasible due to weather, staff, or equipment 
constraints and that a sighting of less than 10 leatherbacks per 50 nm 
(92.6 km) in the replicate survey was not necessarily an indication 
that the turtles had moved away from the closed area.
    From October 1 through December 15, 1999, 15 leatherbacks stranded 
in Nassau through Brevard counties on the east coast of Florida. Since 
these strandings occurred seasonally outside the provisions specified 
in the leatherback conservation zone regulation, NMFS issued an 
emergency 30-day rule (64 FR 69416, December 13, 1999), requiring 
shrimp trawlers to use the leatherback modification in their TEDs. The 
30-day restriction was necessary because leatherbacks were expected to 
be present in the area through that period.
    The leatherback conservation zone regulation does not extend to the 
Gulf area. Historical records indicate that the Western Gulf is 
important to leatherbacks; Leary (1957) reported a large group of up to 
100 leatherbacks just offshore of Port Aransas, Texas associated with a 
dense aggregation of

[[Page 50152]]

Stomolophus. Recent stranding data from 1986 through 1999 show an 
average of 9 leatherbacks per year have been killed in the Western 
Gulf; however, in the last 5 years, that average has gone up to 14 
leatherbacks stranded per year, with a high of 21 leatherbacks in 1999. 
Leatherbacks are also killed in the Eastern Gulf, with an average of 5 
per year from 1986 through 1999 and with a high of 19 in 1989. In the 
Atlantic along the southeastern United States, leatherback strandings 
have averaged 46 per year from 1986 through 1999. Leatherbacks strand 
along the Atlantic coast of Florida year-round, averaging 21 strandings 
per year.
    In French Guiana and Suriname, the largest leatherback rookery in 
the western North Atlantic, nesting has decreased at a rate of 15.0 
percent - 17.3 percent per year since 1987 (NMFS SEFSC 2001). If 
turtles are not nesting elsewhere, it appears that the Western Atlantic 
portion of the population is being subjected to mortality beyond 
sustainable levels, resulting in a continued decline in numbers of 
nesting females. There have been increases in leatherback nesting at 
minor nesting areas such as Florida and the U.S. Virgin Islands, but 
those cannot account for the decreases in the Guianas, which are in the 
tens of thousands.
    A steady increase in Kemp's ridley nesting, which has not leveled 
off to date, has occurred since 1990 and appears to be due to increased 
hatchling protection and a large increase in survival rates of immature 
turtles beginning in 1990, coinciding with the introduction of TEDs. 
Adult ridley numbers have now grown from a low of approximately 1,050 
adults producing 702 nests in 1985, to greater than 3,000 adults 
producing 1,940 nests in 1995, to greater than 9,000 adults producing 
about 5,700 nests in 2000 (TEWG 2000). The increase in the Kemp's 
ridley nesting population since 1989 demonstrates that the use of TEDs 
can have a significant positive impact on the survival and recovery of 
sea turtle species. The proposed required use of either the new 
standard TED opening or the double cover flap TED in all inshore and 
offshore waters in the Gulf and Atlantic Areas will provide the 
protection TEDs afford smaller turtle species to all size classes of 
all sea turtle species thereby aiding in their recovery. This proposal 
will also provide consistency and predictability for the industry by 
eliminating the disparate regulations in different areas and times and 
eliminating reactionary closures to protect leatherback turtles.

Disallow the Use of Hooped Hard TEDs, Weedless TEDs, Jones TEDs, and 
Accelerator Funnels; Require Bait Shrimpers in Certain States to use 
TEDs; and Require Tow Time Restrictions on Small Try Nets

    As stated in NMFS's response to Comment 5 in this proposed rule, 
the structural integrity of the weedless and Jones TEDs does not hold 
up under commercial use. Grid bars bend toward the back of the net. 
This condition has been shown to severely limit these TEDs' ability to 
exclude turtles. Therefore, NMFS is proposing to require that TED 
deflector bars be securely attached/welded to the top and bottom of the 
TED frame or to a horizontal deflector bar (in the case of flounder 
TEDs), to be implemented 1 year after the final rule is published in 
the Federal Register. This will allow fishermen to replace this gear as 
part of normal gear replacement due to wear and tear.
    As stated in NMFS's response to Comments 3 and 5 in this proposed 
rule, it is not feasible to construct a hooped hard TED large enough to 
exclude large loggerhead and leatherback turtles. The hooped hard TED 
also is not widely used, and enforcement personnel report confusion 
with the differing regulatory requirements for escape openings for 
single grid and hooped hard TEDs.
    NMFS is proposing that the use of accelerator funnels not be 
allowed. The opening in an accelerator funnel that would be required to 
effectively release large loggerhead and leatherback turtles would be 
too large (71 inch (180 cm)) to accelerate the water through the grid 
and would cause the unattached portion of the funnel to extend out the 
escape opening causing the loss of shrimp.
    NMFS is also proposing to change the exemption from TED 
requirements for bait shrimpers. As stated in NMFS's response to 
Comment 5, NMFS enforcement and gear specialists have seen an increase 
in boats claiming to be bait shrimpers but possessing more than 32 lb 
(14.5 kg) of dead shrimp. Landing dead shrimp would likely result in an 
increase in tow times beyond the shorter tows used to catch live bait. 
Longer tow times would increase the likelihood of entangling a sea 
turtle and, without a TED installed, increase the chance of injury or 
mortality. When there is no incentive to limit tow times as a part of 
normal fishing operations, tow time limits are extremely difficult to 
enforce. Therefore, NMFS is proposing to limit the bait shrimp TED 
exemption to shrimpers with a valid state bait-shrimp license for which 
such state license allows the licensed vessel to participate in the 
bait shrimp fishery only.
    NMFS is proposing to require shrimpers to limit tow times when 
deploying small try nets. Sea turtles are captured in trynets. NMFS 
observer program from 1992 through 1995, documented that try nets 
accounted for 43 percent of the observed turtle captures. In 2001, 
shrimpers operating in the Atlantic area reported capturing more than 
20 turtles in their smaller try nets without TEDs installed. NMFS 
required shrimpers deploying try nets with head rope lengths greater 
than 12 feet (3.6 m) or foot rope length greater than 15 feet (4.6 m) 
to have a TED installed but exempted the smaller try nets (61 FR 66933, 
December 19, 1996). NMFS initially issued this exemption without tow 
time restrictions because it felt that this type of gear naturally lent 
itself to short tow times.
    NMFS recognizes that tow time limits are difficult to enforce, but 
without tow time restrictions, NMFS has no enforcement mechanism to 
ensure compliance with measures that will increase protection of listed 
sea turtles.

Request for Comments

    NMFS will accept written comments (see ADDRESSES) on this proposed 
rule until November 16, 2001. In addition, NMFS will conduct public 
hearings on this action. Hearing dates, times, and locations will be 
published in the Federal Register under separate notification.

References

    Epperly, S.P. and W.G. Teas. 1999. Evaluation of TED Opening 
Dimensions Relative to Size of Turtles stranding in the Western North 
Atlantic. NMFS SEFSC PRD-98/99-08
    Leary, T.R. 1957. A schooling of leatherback turtles, Dermochelys 
coriacea, on the Texas coast. Copeia 1957(3):232.
    National Academy of Science, National Research Council. 1990. 
Decline of the Sea Turtles: Causes and Prevention. National Academy 
Press. Washington, D.C. 189 pp.
    National Marine Fisheries Service Southeast Fisheries Science 
Center (NMFS SEFSC). 2001. Stock assessments of loggerhead and 
leatherback sea turtles and an assessment of the impact of the pelagic 
longline fishery on the loggerhead and leatherback sea turtles of the 
Western North Atlantic. U.S. Department of Commerce NOAA Technical 
Memorandum NMFS-SEFSC-455, 343 pp.
    Turtle Expert Working Group (TEWG). 2000. Assessment update for

[[Page 50153]]

the Kemp's ridley and loggerhead sea turtle populations in the Western 
North Atlantic. U.S. Department of Commerce NOAA Technical Memorandum 
NMFS-SEFSC-444, 115pp.
    Turtle Expert Working Group. 1998. (Byles, R., C. Caillouet, D. 
Crouse, L. Crowder, S. Epperly, W. Gabriel, B. Gallaway, M. Harris, T. 
Henwood, S. Heppell, R. Marquex-M, S. Murphy, W. Teas, N. Thompson, and 
B. Witherington). An Assessment of the Kemp's ridley sea turtle 
(Lepidochelys kempii) and loggerhead (Caretta caretta) sea turtle 
populations in the western North Atlantic. NOAA Technical Memorandum 
NMFS-SEFSC-409. 96 pp.

Classification

    This proposed rule has been determined to be not significant for 
purposes of Executive Order 12866.
    The ESA provides the statutory basis for the rule.
    NMFS prepared a draft EA/RIR for this proposed rule that discusses 
the impact on the environment as a result of this proposed rule. A copy 
of the draft EA/RIR is available from NMFS (see ADDRESSES).
    The Chief Counsel for Regulation of the Department of Commerce 
certified to the Chief Counsel for Advocacy of the Small Business 
Administration that this proposed rule, if adopted, would not have a 
significant economic impact on a substantial number of small entities.
    Fishermen may be adversely affected by this proposed rule primarily 
in the following ways: possible shrimp loss due to the increase in the 
size of the TED opening and additional costs to retrofit current TEDs 
in order to meet proposed minimum grid and opening sizes.
    The increase in the TED opening to a minimum of 71 inch (180.3 cm) 
straight-line stretched mesh would apply to all shrimp fishermen in the 
known universe of shrimp trawlers (15,096). This TED opening 
requirement would be expected to result in a 1-3 percent loss which is 
not statistically different from zero. Assuming a 2 percent shrimp 
loss, the estimated annual real profits by size category, and the 
number of fishing craft per category, the estimated impacts in terms of 
lost real profits per year by size category would be as follows: 
$582,600 for state registered boats, $251,812 for vessels less than 45 
feet (13.7 m), $205,869 for vessels between 45 and 60 feet (13.7 and 
18.3 m), and $389,844 for vessels greater than 60 feet (18.3 m). Thus, 
the total annual loss of profits for the industry would be $1,430,125. 
Applying the standard discount rate of 7 percent over a 5 year time 
period generates a loss of $5,863,795 in real profits. Shrimpers would 
have an option to use the double cover flap TED instead of the TED 
opening with a minimum of 71 inch (180.3 cm) straight-line stretch 
mesh. The double cover flap TED was tested to determine its ability to 
retain shrimp when compared to a commercial TED with a standard flap. 
The double cover flap TED gained 0.00257 pounds (1.1 gram) of shrimp 
per tow when compared to the TED with the standard flap. Assuming 
shrimpers chose this option, there would be no expectation of a 2 
percent shrimp loss.
    Many shrimpers who operated in the areas specified in the 
leatherback conservation zone regulation and were required to use the 
leatherback modification in the past due to emergency rules issued by 
NMFS, continued to use the modification after it was no longer required 
because they thought it performed better than the standard TED in 
retaining shrimp. GADNR reports that up to 60 percent of their shrimp 
fishermen still use the leatherback modification after NMFS required 
them to use it during the spring of 1999. Nonetheless, it is not known 
whether a similar percentage of shrimp fishermen are using the 
leatherback modification in their TEDs in other states/areas.
    The leatherback modification excludes large debris from the trawl 
which improves performance. Fishermen can also use long flaps on bottom 
opening TEDs in areas where short flaps must be used on bottom opening 
TEDs with the standard size opening. Longer flaps will likely increase 
shrimp retention. NMFS believes that the use of the leatherback 
modification and its possibility of increased performance from the 
exclusion of debris and the use of long flaps may benefit fishermen. 
The extent of these potential benefits is unknown.
    Survey data suggest that costs will be incurred by all shrimp 
fishermen who must acquire a larger frame to meet the proposed grid 
size of a minimum inside measurement of 32 in (81 cm) by 32 in (81 cm) 
and those who must refit their existing TEDs to the new 35 in (89 cm) 
by 20 in (51 cm) requirement. On average, the cost of a new frame is 
estimated to be $85 and the cost of refitting to the new minimum size 
opening is $45. However, the survey data also indicate that the 
smallest grid sold by 4 of the 7 net shops would meet the new 
requirements proposed in this alternative. Based on this information 
and observations by enforcement personnel and NMFS' gear specialists, 
NMFS believes that the majority of shrimpers use grids that already 
meet the required minimum grid size proposed by this rule. Those that 
currently use grid sizes smaller than the proposed minimum will have a 
year to replace them, giving fishermen the opportunity to replace them 
as part of scheduled gear maintenance and replacement. Thus, there 
should be no additional costs beyond those incurred as a result of 
existing TED regulations.
    Modifications needed to meet the proposed opening sizes should 
impose relatively few additional costs. Most fishermen and net shop 
owners can make the changes needed to enlarge the escape openings on 
their own. For those who cannot, NMFS' gear specialists will be 
available to help them modify their TEDs to meet the new requirements. 
Although no direct out of pocket expenses may be incurred, an 
opportunity cost of the time necessary to make these modifications 
should still be taken into account. Given the nature of the 
modifications, we estimate that an hour of the fisherman's time will be 
needed to complete this task. Assuming that the owner or captain is 
responsible for making such gear modifications, the average real hourly 
wage of first-line supervisors/mangers in the farming, fishing and 
forestry industries is the best measure of opportunity cost. This 
figure is currently estimated to be $11.49 according to the BLS. 
Although some fishermen may not incur this cost as a result of already 
using TEDs with larger openings, some may have to incur the out of 
pocket expense of $45 to have someone else do the modifications for 
them.
    The disallowance of the hooped hard TED is expected to affect 
approximately 50 small entities in Louisiana that currently use these 
TEDs. Unlike the weedless TED, the hooped hard TED is a durable TED and 
one that cannot be converted to another type of TED. Thus, for these 
fishermen, even with a year to convert their TEDs, they would be forced 
to purchase complete and new TEDs. Based on the survey data, new TEDs 
in Louisiana cost approximately $200. Assuming that these fishermen use 
quad rig trawls (i.e., 4 nets), this part of the rule would require a 
one time expenditure of $800 per entity, or $40,000 in the aggregate.
    NMFS also proposes to disallow the use of weedless and Jones TEDs. 
Current information suggests that the Jones TED is not presently in 
use. The weedless TED is only known to be used in Texas. Information 
from boardings of shrimp fishing craft suggest that 15 percent of Texas 
shrimpers currently use the weedless TED. Since the weedless TED is 
known to be less durable than other TEDs, commonly needing to be 
replaced

[[Page 50154]]

every year, no additional costs are expected as a result of this 
requirement since this proposed alternative would not be implemented 
until 1 year after the final rule is published in the Federal Register. 
This period would give fishermen the opportunity to replace these types 
of gear as part of scheduled gear maintenance and replacement.
    The changes to the bait shrimp exemption are not expected to 
generate any new impacts on shrimp fishermen. Clarification of TED 
requirements for bait shrimpers is needed because, in certain areas, 
many shrimp fishermen constantly switch back and forth between bait and 
food shrimping operations. Since these modifications do not impose TED 
requirements on any entity or operation that was not already covered by 
the existing TED requirements, no impacts would be expected.
    Shrimpers deploying small try nets would be required to abide by 
existing tow time limitations, which are typically 55 minutes, in order 
to be exempt from existing TED requirements. If try nets are truly 
being used as a means to test fishing grounds for shrimp abundance, as 
opposed to an additional device to catch shrimp, then this requirement 
should not impose any costs since typical tow times for try nets are 
known to be 15-20 minutes.
    In conclusion, the proposed changes to the sea turtle conservation 
regulation would not likely impose a significant economic impact on a 
substantial number of small entities. The increase in the minimum size 
openings and grid sizes for TEDs potentially impacts all shrimp 
trawlers in the Gulf of Mexico and South Atlantic which is estimated to 
be approximately 15,000 fishing craft.
    The two criteria to be considered in determining the significance 
of economic impacts are the disproportionate effect and profitability 
between large and small businesses. Since all fishing trawling 
operations are considered small entities, the issue of a 
disproportionate effect is not applicable. And even if differences in 
fishing craft size are examined, in general, the impacts are 
proportionally the same across these size groups.
    With the exception of the leatherback modification requirement and 
the TED modification costs, the components of this rule are not 
expected to reduce profits. The combination of shrimp loss as a result 
of using the TED opening with a minimum of 71 inch (180.3 cm) straight-
line stretched mesh and TED modification expenses could have a 
significant economic impact. An average loss of 2 percent loss in 
profits could be expected only if several assumptions are met: (1) None 
of the potentially affected entities have already converted to using 
the leatherback modification; (2) none chose to use the double cover 
flap which showed no loss in shrimp. Since all these assumptions are 
unlikely to be met, the true loss in profits is likely much less and 
thus not significant.

    Dated: September 24, 2001.
William T. Hogarth,
Assistant Administrator of Fisheries, National Marine Fisheries 
Service.

List of Subjects

50 CFR Part 222

    Endangered and threatened species, Exports, Imports, Marine 
mammals, Transportation.

50 CFR Part 223

    Administrative practice and procedure, Endangered and threatened 
species, Exports, Imports, Reporting and recordkeeping requirements.

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

PART 222--GENERAL ENDANGERED AND THREATENED MARINE SPECIES

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

    Authority: 16 U.S.C. 1531-1544; and 16 U.S.C. 742a et seq., 
unless otherwise noted.


Sec.  222.102  [Amended]

    2. In Sec.  222.102, the definitions: ``Atlantic Shrimp Fishery--
Sea Turtle Conservation Area (Atlantic SFSTCA)'', ``Gulf Shrimp 
Fishery--Sea Turtle Conservation Area (Gulf SFSTCA)'', and 
``Leatherback conservation zone'' are removed.

PART 223--THREATENED MARINE SPECIES AND ANADROMOUS SPECIES.

    3. The authority citation for part 223 continues to read as 
follows:

    Authority: 16 U.S.C. 1531 et seq.
    4. In Sec.  223.206:
    a. Paragraph (d)(2)(ii)(B)(1) is re-designated as paragraph 
(d)(2)(ii)(A)(5), and paragraphs (d)(2)(ii)(B)(2) and (3) are re-
designated as paragraphs (d)(2)(ii)(B)(1) and (2), respectively.
    b. Paragraph (d)(2)(iv) is removed, and paragraph (d)(5) is removed 
and reserved.
    c. Paragraph (d)(2)(ii)(A)(2) is revised to read as follows:


Sec.  223.206  Exceptions to prohibitions relating to sea turtles.

* * * * *
    (d) * * *
    (2) * * *
    (ii) * * *
    (A) * * *
    (2) Is a bait shrimper that retain all live shrimp on board with a 
circulating seawater system, if it does not possess more than 32 pounds 
(14.5 kg) of dead shrimp on board, if it has a valid original state 
bait-shrimp license, and if the state license allows the licensed 
vessel to participate in the bait shrimp fishery only;
* * * * *

    5. In Sec.  223.207:
    a. Paragraph (a) introductory text and paragraphs (a)(3), (a)(4), 
(a)(6) are revised; paragraphs (a)(7)(i) and (a)(8)(i) are removed; 
paragraphs (a)(7)(ii) and (a)(8)(ii) are re-designated as paragraphs 
(a)(7)(i) and (a)(8)(i), respectively, and revised; and paragraphs 
(a)(7)(ii) and (a)(8)(ii) are reserved;
    b. Paragraph (b)(2) is removed and reserved;
    c. Paragraph (c)(1)(iv) is revised;
    d. Paragraph (d)(2) is removed; paragraph (d)(3) is re-designated 
as paragraph (d)(2) and revised; and paragraphs (d)(4) and (d)(5) are 
re-designated as (d)(3) and (d)(4), respectively, to read as follows:


Sec.  223.207  Approved TEDs.

* * * * *
    (a) Hard TEDs. Hard TEDs are TEDs with rigid deflector grids, 
considered single-grid hard TEDs such as the Matagorda and Georgia TED 
(Figures 3 & 4 to this part). Hard TEDs complying with the following 
generic design criteria are approved TEDs:
* * * * *
    (3) Angle of deflector bars. (i) The angle of the deflector bars 
must be between 30 deg. and 55 deg. from the normal, horizontal flow 
through the interior of the trawl.
    (A) The deflector bars run from top to bottom and are attached to 
the bottom of the TED frame. The angle of the bottom most 4 inches (10 
cm) of each deflector bar, measured along the bars, must not exceed 
45 deg. (Figures 14A and 14B to this part).
    (B) [Reserved]
    (ii) [Reserved]
    (4) Space between bars. The space between deflector bars and 
between the deflector bars and the TED frame must not exceed 4 inches 
(10.2 cm). The deflector bars must be firmly attached to the TED frame 
at both ends.
* * * * *
    (6) Position of the escape opening. The escape opening must be made 
by removing a rectangular section of webbing from the trawl centered on 
and immediately forward of the frame at either the top or bottom of the 
net when

[[Page 50155]]

the net is in the deployed position. The escape opening must be at the 
top of the net when the slope of the deflector bars from forward to aft 
is upward, and must be at the bottom when such slope is downward. The 
passage from the mouth of the trawl through the escape opening must be 
completely clear of any obstruction or modification.
    (7) * * *
    (i) Single-grid hard TEDs. On a single-grid hard TED, the cut for 
the escape opening cannot be narrower than the outside width of the TED 
frame minus 4 inches (10.2 cm) on both sides of the grid, when measured 
as a straight line width. The overall size of the escape opening must 
match one of the following specifications:
    (A) Standard opening. The two forward cuts of the escape opening 
must not be less than 20 inches (51 cm) long from the points of the cut 
immediately forward of the TED frame. The resultant length of the 
leading edge of the escape opening cut must be a minimum of 71 inches 
(180 cm). (Figure 1A of this part illustrates the dimensions of these 
cuts). A webbing flap, as described in (d)(3)(i) of this section, may 
be used with this escape hole. The resultant opening with a webbing 
flap must have a minimum width of 71 inches (180 cm) straight-line 
stretched mesh (Figure 1C of this part). The circumference of the exit 
opening must be 142 inches (361 cm) when stretched.
    (B) Double cover flap TED opening. The two forward cuts of the 
escape opening must not be less than 20 inches (51 cm) long from the 
points of the cut immediately forward of the TED frame. The resultant 
length of the leading edge of the escape opening cut must be no less 
than 56 inches (142 cm)(Figure 16 of this part illustrates the 
dimensions of these cuts). A webbing flap, as described in (d)(3)(ii) 
of this section, may be used with this escape hole.
    (ii) [Reserved]
    (8) * * *
    (i) Single-grid hard TED. A single-grid hard TED must have a 
minimum inside horizontal and vertical measurement of 32 inches (81 
cm). The required inside measurement must be at the mid-point of the 
deflector grid.
    (ii) [Reserved]
* * * * *
    (c) * * *
    (1) * * *
    (iv) Escape Opening. A horizontal cut extending from the attachment 
of one side of the deflector panel to the trawl to the attachment of 
the other side of the deflector panel to the trawl must be made in a 
single row of meshes across the top of the trawl and measure at least 
96 inches (244 cm) in taut width. All trawl webbing above the deflector 
panel between the 96-inch (244-cm) cut and edges of the deflector panel 
must be removed. A rectangular flap of nylon webbing not larger than 2-
inch (5.1-cm) stretched mesh may be sewn to the forward edge of the 
escape opening. The width of the flap must not be larger than the width 
of the forward edge of the escape opening. The flap must not extend 
more than 12 inches (30.4 cm) beyond the rear point of the escape 
opening. The sides of the flap may be attached to the top of the trawl 
but must not be attached farther aft than the row of meshes through the 
rear point of the escape opening. One row of steel chain not larger 
than 3 /16 inch (4.76 mm) may be sewn evenly to the back edge of the 
flap. The stretched length of the chain must not exceed 96 inches (244 
cm).
* * * * *
    (d) * * *
    (2) Webbing flap. A webbing flap may be used to cover the escape 
opening under the following conditions: No device holds it closed or 
otherwise restricts the opening; it is constructed of webbing with a 
stretched mesh size no larger than 1 5/8 inches (4.1 cm); it lies on 
the outside of the trawl; it is attached along its entire forward edge 
forward of the escape opening; it is not attached on the sides beyond 
the row of meshes that lies 6 inches (15.2 cm) behind the posterior 
edge of the grid. The sides of the flap must be sown on the same row of 
meshes fore and aft. The flaps may not overlap the escape hole cut by 
more than 3 meshes on either side.
    (i) Standard TED flap. The flap must be a 133-inch (338-cm) by 58-
inch (148-cm) piece of webbing. The 133-inch (338-cm) edge of the flap 
is attached to the forward edge of the opening (71-inch (180-cm) edge). 
The sides of the flap may overlap the exit hole on either side by no 
more than 5 inches (13 cm). The flap may extend no more than 24 inches 
(61 cm) behind the posterior edge of the grid (Figure 1B illustrates 
this flap).
    (ii) Double cover flap TED flap. This flap must be composed of two 
equal size rectangular panels of webbing. Each panel must be no less 
than 58 inches (147 cm) wide and may overlap each other no more than 15 
inches (38 cm). The panels may only be sewn together along the leading 
edge of the cut. The edge of the panels may be attached 6 inches (15 
cm) behind posterior edge of grid, the end of each panel must not 
extend more than 6 inches (15 cm) past the posterior edge of the grid 
(Figure 16). The sides of the flap must be sown on the same row of 
meshes fore and aft. The flaps may not overlap the escape hole cut by 
more than 3 meshes on either side. Chafing webbing described in 
paragraph (d)(4) of this section may not be used with this type of 
flap.
* * * * *

    6. In part 223:
    a. Remove Figure 1, and remove and reserve Figures 2, 12A, 12B, and 
15.
    b. Add Figures 1A, 1B, and 1C to part 223.
    c. Revise Figure 11 to read as follows:
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