Proposed Rule2023-14225
Endangered and Threatened Wildlife and Plants; Designation of Critical Habitat for Green Sea Turtle
Primary source
Metadata and text below are from the Federal Register, a public-domain U.S. government work. Always verify the official published version before relying on it for any legal matter.
Published
July 19, 2023
Issuing agencies
Interior DepartmentFish and Wildlife Service
Abstract
We, the U.S. Fish and Wildlife Service (Service or USFWS), propose to designate critical habitat for five distinct population segments (DPSs) of the green sea turtle (Chelonia mydas) under the Endangered Species Act of 1973, as amended (ESA or Act). The five DPSs include the federally threatened North Atlantic, South Atlantic, and Central North Pacific DPSs and the federally endangered Central South Pacific and Central West Pacific DPSs. In total, approximately 8,870 acres (ac) (3,590 hectares (ha)) are proposed across 101 units in the States of Florida and Hawai[revaps]i; the territories of the U.S. Virgin Islands, American Samoa, and Guam; the commonwealths of Puerto Rico and the Northern Mariana Islands, and two USFWS-managed areas (Midway Islands and Palmyra Atoll). We also announce five public informational meetings and public hearings and the availability of a draft economic analysis of the proposed critical habitat designation for the terrestrial areas included in this proposed rule. Elsewhere in today's Federal Register, the National Marine Fisheries Service (NMFS) is also proposing to designate specific areas in the marine environment as critical habitat for DPSs of the green sea turtle.
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[Federal Register Volume 88, Number 137 (Wednesday, July 19, 2023)]
[Proposed Rules]
[Pages 46376-46570]
From the Federal Register Online via the Government Publishing Office [<a href="http://www.gpo.gov">www.gpo.gov</a>]
[FR Doc No: 2023-14225]
[[Page 46375]]
Vol. 88
Wednesday,
No. 137
July 19, 2023
Part II
Department of the Interior
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Fish and Wildlife Service
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50 CFR Part 17
Endangered and Threatened Wildlife and Plants; Designation of Critical
Habitat for Green Sea Turtle; Proposed Rule
Federal Register / Vol. 88 , No. 137 / Wednesday, July 19, 2023 /
Proposed Rules
[[Page 46376]]
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DEPARTMENT OF THE INTERIOR
Fish and Wildlife Service
50 CFR Part 17
[Docket No. FWS-R4-ES-2022-0164; FF09E21000 FXES1111090FEDR 234]
RIN 1018-BG81
Endangered and Threatened Wildlife and Plants; Designation of
Critical Habitat for Green Sea Turtle
AGENCY: Fish and Wildlife Service, Interior.
ACTION: Proposed rule; announcement of public hearings.
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SUMMARY: We, the U.S. Fish and Wildlife Service (Service or USFWS),
propose to designate critical habitat for five distinct population
segments (DPSs) of the green sea turtle (Chelonia mydas) under the
Endangered Species Act of 1973, as amended (ESA or Act). The five DPSs
include the federally threatened North Atlantic, South Atlantic, and
Central North Pacific DPSs and the federally endangered Central South
Pacific and Central West Pacific DPSs. In total, approximately 8,870
acres (ac) (3,590 hectares (ha)) are proposed across 101 units in the
States of Florida and Hawai[revaps]i; the territories of the U.S.
Virgin Islands, American Samoa, and Guam; the commonwealths of Puerto
Rico and the Northern Mariana Islands, and two USFWS-managed areas
(Midway Islands and Palmyra Atoll). We also announce five public
informational meetings and public hearings and the availability of a
draft economic analysis of the proposed critical habitat designation
for the terrestrial areas included in this proposed rule. Elsewhere in
today's Federal Register, the National Marine Fisheries Service (NMFS)
is also proposing to designate specific areas in the marine environment
as critical habitat for DPSs of the green sea turtle.
DATES:
Public informational meetings and public hearings: We will hold
five public informational meetings followed by public hearings on:
(1) Central North Pacific DPS--Hawai[revaps]i: August 10, 2023,
from 6 p.m. to 8 p.m., Hawai[revaps]i-Aleutian time;
(2) Central South Pacific DPS--Tutuila: August 16, 2023, from 6
p.m. to 8 p.m., Samoan time;
(3) Central West Pacific DPS--Guam: August 21, 2023, from 6 p.m. to
8 p.m., Chamorro time;
(4) Central West Pacific DPS--Saipan: August 23, 2023, from 6 p.m.
to 8 p.m., Chamorro time;
(5) North and South Atlantic DPSs--Florida, Puerto Rico and U.S.
Virgin Islands: August 29, 2023, from 6 p.m. to 8 p.m., eastern time.
Comment submission: We will accept comments received or postmarked
on or before October 17, 2023. Comments submitted electronically using
the Federal eRulemaking Portal (see ADDRESSES, below) must be received
by 11:59 p.m. eastern time on the closing date.
ADDRESSES:
Public informational meetings and public hearings:
<bullet> For the Central North Pacific DPS, the North Atlantic DPS,
and the South Atlantic DPS: We are holding public informational
meetings and public hearings via the Zoom online video platform and via
teleconference so that participants can attend remotely.
<bullet> For the Central South Pacific DPS and Central West Pacific
DPS: We are holding public informational meetings and public hearings
in-person on Tutuila (Central South Pacific DPS), Guam (Central West
Pacific DPS), and Saipan (Central West Pacific DPS).
For additional information, see Public Hearings, below, under
SUPPLEMENTARY INFORMATION.
Comment submission: You may submit comments by one of the following
methods:
(1) Electronically: Go to the Federal eRulemaking Portal: <a href="https://www.regulations.gov">https://www.regulations.gov</a>. In the Search box, enter FWS-R4-ES-2022-0164,
which is the docket number for this rulemaking. Then, click on the
Search button. On the resulting page, in the panel on the left side of
the screen, under the Document Type heading, check the Proposed Rule
box to locate this document. You may submit a comment by clicking on
``Comment.''
(2) By hard copy: Submit by U.S. mail to: Public Comments
Processing, Attn: FWS-R4-ES-2022-0164, U.S. Fish and Wildlife Service,
MS: PRB/3W, 5275 Leesburg Pike, Falls Church, VA 22041-3803.
We request that you send comments only by the methods described
above. We will post all comments on <a href="https://www.regulations.gov">https://www.regulations.gov</a>. This
generally means that we will post any personal information you provide
us (see Information Requested, below, for more information).
Availability of supporting materials: Supporting materials (such as
the draft economic analysis and supporting Methodology document) are
available on the USFWS's website at <a href="https://www.fws.gov/office/florida-ecological-services/library/green-sea-turtle">https://www.fws.gov/office/florida-ecological-services/library/green-sea-turtle</a>, at <a href="https://www.regulations.gov">https://www.regulations.gov</a> at Docket No. FWS-R4-ES-2022-0164, or both. For the
proposed critical habitat designation, the coordinates or plot points
or both from which the maps are generated are included in the decision
file for this proposed critical habitat designation and are available
at <a href="https://www.regulations.gov">https://www.regulations.gov</a> at Docket No. FWS-R4-ES-2022-0164 and on
the USFWS's website at <a href="https://www.fws.gov/office/florida-ecological-services/library/green-sea-turtle">https://www.fws.gov/office/florida-ecological-services/library/green-sea-turtle</a>.
FOR FURTHER INFORMATION CONTACT: For the Central North Pacific, Central
South Pacific, and Central West Pacific DPSs: Earl W. Campbell, Project
Leader, U.S. Fish and Wildlife Service, Pacific Islands Fish and
Wildlife Office, 300 Ala Moana Boulevard, Room 3-122, Honolulu, HI
96850; by telephone 808-792-9400. For the North Atlantic and South
Atlantic DPSs: Lourdes Mena, Classification and Recovery Division
Manager, U.S. Fish and Wildlife Service, Florida Ecological Services
Field Office, 7915 Baymeadows Way, Suite 200, Jacksonville, FL 32256;
by telephone 904-731-3134. Individuals in the United States who are
deaf, deafblind, hard of hearing, or have a speech disability may dial
711 (TTY, TDD, or TeleBraille) to access telecommunications relay
services. Individuals outside the United States should use the relay
services offered within their country to make international calls to
the point-of-contact in the United States.
SUPPLEMENTARY INFORMATION:
Executive Summary
Why we need to publish a rule. Under the Act, when we determine
that any species warrants listing as an endangered or threatened
species, we are required to designate critical habitat, to the maximum
extent prudent and determinable. Designations of critical habitat can
be completed only by issuing a rule through the Administrative
Procedure Act rulemaking process (5 U.S.C. 551 et seq.).
What this document does. This document proposes specific areas in
the terrestrial environment as critical habitat for five DPSs of green
sea turtle (hereafter referred to as ``green turtle''), which is a
circumglobal reptile that is listed as a threatened species in the
North Atlantic, South Atlantic, and Central North Pacific DPSs, and
listed as an endangered species in the Central South Pacific and
Central West Pacific DPSs. The proposed critical habitat areas occur in
portions of two States (Florida and Hawai[revaps]i), three U.S.
territories (U.S. Virgin Islands, American Samoa, and Guam), two U.S.
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commonwealths (Puerto Rico and Northern Mariana Islands), and two areas
(Midway Islands and Palmyra Atoll) administered by the Department of
the Interior's USFWS Refuge System.
The basis for our action. Section 4(a)(3) of the Act requires the
Secretary of the Interior (Secretary), to the maximum extent prudent
and determinable, to designate critical habitat concurrent with
listing. Section 3(5)(A) of the Act defines critical habitat as (i) the
specific areas within the geographical area occupied by the species, at
the time it is listed, on which are found those physical or biological
features (I) essential to the conservation of the species and (II)
which may require special management considerations or protections; and
(ii) specific areas outside the geographical area occupied by the
species at the time it is listed, upon a determination by the Secretary
that such areas are essential for the conservation of the species.
Section 4(b)(2) of the Act states that the Secretary must make the
designation on the basis of the best scientific data available and
after taking into consideration the economic impact, the impact on
national security, and any other relevant impacts of specifying any
particular area as critical habitat.
Acronyms and Abbreviations Used in This Proposed Rule
For the convenience of the reader, listed below are some of the
acronyms and abbreviations used in this proposed rule:
Act = Endangered Species Act
BAFS = Bellows Air Force Station
CNMI = Commonwealth of the Northern Mariana Islands
Corps = U.S. Army Corps of Engineers
DEA = draft economic analysis
DHS = Department of Homeland Security
DLNR = Department of Land and Natural Resources
DNER = Department of Natural and Environmental Resources
DoD = Department of Defense
DPS = distinct population segment
FDEP = Florida Department of Environmental Protection
GDoAg = Guam Department of Agriculture
GIS = geographic information system
GTM = Guana Tolomato Matanzas
HCP = habitat conservation plan
HDLNR = Hawai[revaps]i Department of Land and Natural Resources
HDOFAW = Hawai[revaps]i Division of Forestry and Wildlife
HDSP = Hawai[revaps]i Division of State Parks
IEM = incremental effects memorandum
INRMP = integrated natural resources management plan
IPCC = Intergovernmental Panel on Climate Change
MHWL = mean high-water line
NMFS = National Marine Fisheries Service
NOAA = National Oceanic and Atmospheric Administration
NPS = U.S. National Park Service
NWR = National Wildlife Refuge
PBF = physical or biological features
Service and USFWS = U.S. Fish and Wildlife Service
SSA = species status assessment
TNC = The Nature Conservancy
USCCSP = U.S. Climate Change Science Program
STXEEMP = St. Croix East End Marine Park
USGS = U.S. Geological Survey
UXO = unexploded ordnance
Information Requested
We intend that any final action resulting from this proposed rule
will be based on the best scientific and commercial data available and
be as accurate and as effective as possible. Therefore, we request
comments or information from other governmental agencies, Native
American Tribes, the scientific community, industry, or any other
interested parties concerning this proposed rule. We particularly seek
comments concerning:
(1) Specific information on:
(a) The amount and distribution of green turtle basking habitat in
the Central North Pacific DPS and nesting habitat in all five DPSs;
(b) Any additional areas occurring within the range of the five
DPSs of green turtles that should be included in the designation
because they (i) are occupied at the time of listing and contain the
physical or biological features (PBFs) that are essential to the
conservation of the species and that may require special management
considerations, or (ii) are unoccupied at the time of listing and are
essential for the conservation of the species;
(c) The boundaries of specific areas and proposed critical habitat
units;
(d) Special management considerations or protection that may be
needed in critical habitat areas we are proposing, including managing
for the potential effects of climate change; and
(e) Whether occupied areas are adequate for the conservation of the
species, as this will help us evaluate the potential to include areas
not occupied at the time of listing. Additionally, please provide
specific information regarding whether or not unoccupied areas would,
with reasonable certainty, contribute to the conservation of the
species and contain at least one PBF essential to the conservation of
the species. We also seek comments or information regarding whether
areas not occupied at the time of listing qualify as habitat for the
species.
(2) Land use designations and current or planned activities in the
subject areas and their possible impacts on proposed critical habitat,
including information regarding the types of Federal actions that may
trigger an ESA section 7 consultation and potential conservation
measures to avoid and minimize impacts to the critical habitat
designation that are different from those to avoid and minimize impacts
to the species.
(3) Information on the projected impacts of climate change on the
green turtle's proposed critical habitat.
(4) Any probable economic, national security, or other relevant
impacts of designating any area that may be included in the final
designation, and the related benefits of including or excluding
specific areas.
(5) Information on the extent to which the description of probable
economic impacts in the draft economic analysis (DEA) is a reasonable
estimate of the likely economic impacts, including:
(a) Whether any data used in the economic analysis needs to be
updated;
(b) Additional costs arising specifically from the designation of
critical habitat that have not been identified in the DEA or improved
cost estimates for activities that are included in the DEA;
(c) Information on the potential for incremental costs to occur
outside of the section 7 consultation process. These types of costs may
include triggering additional requirements or project modifications
under other laws or regulations, and perceptional effects on markets;
and,
(d) Information on non-Federal entities that receive Federal
funding, assistance, or permits, or that otherwise require approval or
authorization from a Federal agency for an action, that may be
indirectly impacted by the designation of critical habitat.
(6) Whether any specific areas we are proposing for critical
habitat designation should be considered for exclusion under section
4(b)(2) of the Act, and whether the benefits of potentially excluding
any specific area outweigh the benefits of including that area under
section 4(b)(2) of the Act, in particular those based on a conservation
program or plan, and why. These may include Tribal, State/Territory/
Commonwealth, county, local, or private lands with permitted
conservation plans covering the species in the area such as habitat
conservation plans, safe harbor agreements, or conservation easements,
or non-permitted conservation agreements and partnerships that would be
encouraged by designation of, or exclusion from, critical habitat. If
you think we should exclude any additional areas, please provide
information supporting a
[[Page 46378]]
benefit of exclusion. Detailed information regarding these plans,
agreements, easements, and partnerships is also requested, including:
(a) The location and size of lands covered by the plan, agreement,
easement, or partnership;
(b) The duration of the plan, agreement, easement, or partnership;
(c) Who holds or manages the land;
(d) What management activities are conducted;
(e) What land uses are allowable; and
(f) If management activities are beneficial to the green turtle and
its habitat.
(7) Information on any specific areas that we have identified as
``uncategorized'' land ownership in the three Pacific DPSs, or any
information on possible private lands ownership in the South Atlantic
DPS or within Puerto Rico in the North Atlantic DPS that may currently
be included within territory ownership.
(8) Whether the benefits of exclusion outweigh the benefits of
inclusion as critical habitat for lands within the Indian River County
Habitat Conservation Plan (HCP) that are considered for exclusion under
section 4(b)(2) of the Act in this proposed rule.
(9) Whether we could improve or modify our approach to designating
critical habitat in any way to provide for greater public participation
and understanding, or to better accommodate public concerns and
comments.
Please include sufficient information with your submission (such as
scientific journal articles or other publications) to allow us to
verify any scientific or commercial information you include.
Please note that submissions merely stating support for, or
opposition to, the action under consideration without providing
supporting information, although noted, do not provide substantial
information necessary to support a determination. Section 4(b)(2) of
the Act directs that the Secretary shall designate critical habitat on
the basis of the best scientific data available.
You may submit your comments and materials concerning this proposed
rule by one of the methods listed in ADDRESSES. We request that you
send comments only by the methods described in ADDRESSES. Please note
that we will address, in the USFWS's final rule, only those comments
directly related to the terrestrial areas (i.e., basking habitat in the
Central North Pacific DPS, and nesting habitat in the Central North
Pacific, Central South Pacific, Central West Pacific, North Atlantic,
and South Atlantic DPSs) that are described in this proposed critical
habitat designation. Any comments related to NMFS's proposed critical
habitat designation of the green turtle's marine environment, which
published elsewhere in today's Federal Register, should be provided to
NMFS (available on the internet at <a href="https://www.regulations.gov">https://www.regulations.gov</a>, NOAA-
NMFS-2023-0087).
If you submit information via <a href="https://www.regulations.gov">https://www.regulations.gov</a>, your
entire submission--including any personal identifying information--will
be posted on the website. If your submission is made via a hardcopy
that includes personal identifying information, you may request at the
top of your document that we withhold this information from public
review. However, we cannot guarantee that we will be able to do so. We
will post all hardcopy submissions on <a href="https://www.regulations.gov">https://www.regulations.gov</a>.
Comments and materials we receive, as well as supporting
documentation we used in preparing this proposed rule, will be
available for public inspection on <a href="https://www.regulations.gov">https://www.regulations.gov</a>.
Our final determination may differ from this proposal because we
will consider all comments we receive during the comment period related
to the proposed critical habitat designation in the terrestrial
environment as well as any information that may become available after
this proposal. Based on the new information we receive (and any
comments on that new information), our final designation may not
include all areas proposed, may include some additional areas that meet
the definition of critical habitat, or may exclude some areas if we
find the benefits of exclusion outweigh the benefits of inclusion and
exclusion will not result in the extinction of the species. In our
final rule, we will clearly explain our rationale and the basis for our
final decision, including why we made changes, if any, that differ from
this proposal.
Public Hearings
Section 4(b)(5) of the Act provides for a public hearing on this
proposal, if requested. At this time, we have preemptively scheduled
five public informational meetings and public hearings on this proposed
rule. Each of these meetings will include both USFWS and NMFS,
providing opportunities for participation regarding both our proposed
critical habitat in the terrestrial environment (as described in this
document) and the corresponding proposed critical habitat in the marine
environment that NMFS has published elsewhere in today's Federal
Register (see <a href="https://www.regulations.gov">https://www.regulations.gov</a>, NOAA-NMFS-2023-0087). We
will hold the public informational meetings and public hearings on the
dates and at the times listed above under Public informational meetings
and public hearings in DATES.
<bullet> For the Central North Pacific DPS, the North Atlantic DPS,
and the South Atlantic DPS: We are holding public informational
meetings and public hearings via the Zoom online video platform and via
teleconference so that participants can attend remotely. For security
purposes, registration is required. You must register in order to
listen and view a hearing via Zoom, listen to the hearing by telephone,
or provide oral public comments at a public hearing by Zoom or
telephone. For information on how to register, or if remote
participants encounter problems joining Zoom the day of the hearing(s),
visit <a href="https://www.fws.gov/office/florida-ecological-services/library/green-sea-turtle">https://www.fws.gov/office/florida-ecological-services/library/green-sea-turtle</a>. Registrants will receive the Zoom link and the
telephone number for the public hearing that they request to attend. If
applicable, interested members of the public not familiar with the Zoom
platform should view the Zoom video tutorials (<a href="https://learn-zoom.us/show-me">https://learn-zoom.us/show-me</a>) prior to the public hearing.
<bullet> For the Central South Pacific DPS and Central West Pacific
DPS: We are holding public informational meetings and public hearings
in-person on Tutuila (Central South Pacific DPS), Guam (Central West
Pacific DPS), and Saipan (Central West Pacific DPS). For information on
meeting locations, visit <a href="https://www.fws.gov/office/florida-ecological-services/library/green-sea-turtle">https://www.fws.gov/office/florida-ecological-services/library/green-sea-turtle</a>.
The public hearings will provide interested parties an opportunity
to present verbal testimony (formal, oral comments) regarding this
proposed rule to designate critical habitat within basking habitat
areas (only within the Central North Pacific DPS) and nesting habitat
areas in all the DPSs (i.e., only the terrestrial environment used by
green turtles). Informational meetings will be held prior to each
public hearing for each of the DPSs. While public informational
meetings will be opportunities for dialogue with the USFWS and NMFS,
the public hearings are not. Rather, a public hearing is a forum for
accepting formal verbal testimony. In the event there is a large
attendance, the time allotted for oral statements may be limited.
Therefore, anyone wishing to make an oral statement at a public hearing
for the record is encouraged to provide a prepared written copy of
their statement to us through the Federal eRulemaking
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Portal, or U.S. mail (see ADDRESSES, above). There are no limits on the
length of written comments submitted to us. Anyone wishing to make an
oral statement at a public hearing must register before the hearing at
<a href="https://www.fws.gov/office/florida-ecological-services/library/green-sea-turtle">https://www.fws.gov/office/florida-ecological-services/library/green-sea-turtle</a>. The use of virtual public hearings is consistent with our
regulations at 50 CFR 424.16(c)(3).
Reasonable Accommodation
The USFWS is committed to providing access to the public
informational meetings and public hearings for all participants. The
virtual public informational meetings and public hearings held for the
Central North Pacific DPS, the North Atlantic DPS, and the South
Atlantic DPS will make closed captioning available during the meetings
and hearings, and a full audio and video recording and transcript will
be posted online at <a href="https://www.fws.gov/office/florida-ecological-services/library/green-sea-turtle">https://www.fws.gov/office/florida-ecological-services/library/green-sea-turtle</a>. Additionally, participants will also
have access to live audio during these public informational meetings
and public hearings via their telephone or computer speakers. For the
in-person public informational meetings and public hearings held for
the Central South Pacific DPS and the Central West Pacific DPS, we will
provide a transcript to be posted online at <a href="https://www.fws.gov/office/florida-ecological-services/library/green-sea-turtle">https://www.fws.gov/office/florida-ecological-services/library/green-sea-turtle</a>. Persons with
disabilities requiring reasonable accommodations to participate in the
meetings and/or public hearings should contact the relevant person
listed under FOR FURTHER INFORMATION CONTACT at least 5 business days
prior to the date of the hearing they wish to attend to help ensure
availability. An accessible version of the USFWS's public informational
presentations provided at the beginning of the public informational
meetings (prior to the public hearings) will also be posted online at
<a href="https://www.fws.gov/office/florida-ecological-services/library/green-sea-turtle">https://www.fws.gov/office/florida-ecological-services/library/green-sea-turtle</a> (see DATES, above). See <a href="https://www.fws.gov/office/florida-ecological-services/library/green-sea-turtle">https://www.fws.gov/office/florida-ecological-services/library/green-sea-turtle</a> for more information about
reasonable accommodation.
Previous Federal Actions
It is our intent to discuss only those topics directly relevant to
the designation of critical habitat for the terrestrial environment
used by green turtles within the associated DPSs in this document. For
more information on the taxonomy, biology, and ecology of the green
turtle or its habitat, refer to the final listing rule for the 11 green
turtle DPSs published in the Federal Register on April 6, 2016 (81 FR
20058), available online at <a href="https://www.regulations.gov">https://www.regulations.gov</a> (at Docket No.
120425024-6232-06). Additionally, for more information on the green
turtle's habitat in the marine environment, refer to NMFS's proposed
critical habitat designation for the marine environment that is
published elsewhere in today's Federal Register at <a href="https://www.regulations.gov">https://www.regulations.gov</a> (NOAA-NMFS-2023-0087).
On January 8, 2020, the Center for Biological Diversity, Sea Turtle
Oversight Protection, and Turtle Island Restoration Network
(Plaintiffs) filed a complaint (Case 1:20-cv-00036) alleging that the
USFWS and NMFS violated the Act by failing to comply with the statutory
deadline for designating critical habitat for six DPSs listed on April
6, 2016 (81 FR 20058). On August 20, 2020, the parties entered into a
stipulated settlement agreement, which was subsequently approved by the
Court, whereby the USFWS and NMFS agreed to submit to the Federal
Register proposed critical habitat designations for the six DPSs at
issue in the complaint on or before June 30, 2023. In compliance with
the settlement agreement, this document constitutes the proposed
critical habitat designation for the five DPSs of green turtle where
the USFWS has jurisdiction to designate critical habitat.
Peer Review
In accordance with our joint policy on peer review published in the
Federal Register on July 1, 1994 (59 FR 34270), and our August 22,
2016, memorandum updating and clarifying the role of peer review of
listing actions under the Act, we are soliciting independent scientific
review of this proposed critical habitat designation (including the
supplemental ``Methodology'' document (USFWS 2023, entire) available on
the internet at <a href="https://www.regulations.gov">https://www.regulations.gov</a> under Docket No. FWS-R4-ES-
2022-0164 and at <a href="https://www.fws.gov/office/florida-ecological-services/library/green-sea-turtle">https://www.fws.gov/office/florida-ecological-services/library/green-sea-turtle</a>) to ensure that this proposal is
based on scientifically sound data and analysis. We have invited peer
reviewers to comment on our specific assumptions, methodology, and
science used in this proposed rule, and we will consider any comments
received, as appropriate, before a final agency determination.
Background
Critical habitat is defined in section 3 of the Act as:
(1) The specific areas within the geographical area occupied by the
species, at the time it is listed in accordance with the Act, on which
are found those physical or biological features
(a) Essential to the conservation of the species, and
(b) Which may require special management considerations or
protection; and
(2) Specific areas outside the geographical area occupied by the
species at the time it is listed, upon a determination that such areas
are essential for the conservation of the species.
Our regulations at 50 CFR 424.02 define the geographical area
occupied by the species as an area that may generally be delineated
around species' occurrences, as determined by the Secretary (i.e.,
range). Such areas may include those areas used throughout all or part
of the species' life cycle, even if not used on a regular basis (e.g.,
migratory corridors, seasonal habitats, and habitats used periodically,
but not solely, by vagrant individuals).
Conservation, as defined under section 3 of the Act, means to use
and the use of all methods and procedures that are necessary to bring
an endangered or threatened species to the point at which the measures
provided pursuant to the Act are no longer necessary. Such methods and
procedures include, but are not limited to, all activities associated
with scientific resources management such as research, census, law
enforcement, habitat acquisition and maintenance, propagation, live
trapping, and transplantation, and, in the extraordinary case where
population pressures within a given ecosystem cannot be otherwise
relieved, may include regulated taking.
Critical habitat receives protection under section 7 of the Act
through the requirement that each Federal action agency ensure, in
consultation with the USFWS, that any action they authorize, fund, or
carry out is not likely to result in the destruction or adverse
modification of designated critical habitat. The designation of
critical habitat does not affect land ownership or establish a refuge,
wilderness, reserve, preserve, or other conservation area. Such
designation also does not allow the government or public to access
private lands. Such designation does not require implementation of
restoration, recovery, or enhancement measures by non-Federal
landowners. Rather, designation requires that, where a landowner
requests Federal agency funding or authorization for an action
[[Page 46380]]
that may affect an area designated as critical habitat, the Federal
agency consult with the USFWS under section 7(a)(2) of the Act. If the
action may affect the listed species itself (such as for occupied
critical habitat), the Federal agency would have already been required
to consult with the Service even absent the designation because of the
requirement to ensure that the action is not likely to jeopardize the
continued existence of the species. Even if the USFWS were to conclude
after consultation that the proposed activity is likely to result in
destruction or adverse modification of the critical habitat, the
Federal action agency and the landowner are not required to abandon the
proposed activity, or to restore or recover the species; instead, they
must implement ``reasonable and prudent alternatives'' to avoid
destruction or adverse modification of critical habitat.
Under the first prong of the Act's definition of critical habitat,
areas within the geographical area occupied by the species at the time
it was listed are included in a critical habitat designation if they
contain PBFs (1) which are essential to the conservation of the species
and (2) which may require special management considerations or
protection. For these areas, critical habitat designations identify, to
the extent known using the best scientific and commercial data
available, those PBFs that are essential to the conservation of the
species (such as space, food, cover, and protected habitat).
Under the second prong of the Act's definition of critical habitat,
we can designate critical habitat in areas outside the geographical
area occupied by the species at the time it is listed, upon a
determination that such areas are essential for the conservation of the
species.
Section 4 of the Act requires that we designate critical habitat on
the basis of the best scientific data available. Further, our Policy on
Information Standards Under the Endangered Species Act (published in
the Federal Register on July 1, 1994 (59 FR 34271)), the Information
Quality Act (section 515 of the Treasury and General Government
Appropriations Act for Fiscal Year 2001 (Pub. L. 106-554; H.R. 5658)),
and our associated Information Quality Guidelines provide criteria,
establish procedures, and provide guidance to ensure that our decisions
are based on the best scientific data available. They require our
biologists, to the extent consistent with the Act and with the use of
the best scientific data available, to use primary and original sources
of information as the basis for recommendations to designate critical
habitat.
Our primary sources of information are described in the 2016 final
listing rule for the 11 DPSs, new information available since that time
as referenced in this document, as well as our supporting
``Methodology'' document available on the internet at <a href="https://www.regulations.gov">https://www.regulations.gov</a> at Docket No. FWS-R4-ES-2022-0164 and on the
USFWS's website at <a href="https://www.fws.gov/office/florida-ecological-services/library/green-sea-turtle">https://www.fws.gov/office/florida-ecological-services/library/green-sea-turtle</a>. Additional information sources may
include any generalized conservation strategy, criteria, or outline
that may have been developed for the species; the recovery plan(s) for
the species; articles in peer-reviewed journals; conservation plans
developed by States and counties; scientific status surveys and
studies; biological assessments; other unpublished materials; or
experts' opinions or personal knowledge.
Habitat is dynamic, and species may move from one area to another
over time. We recognize that critical habitat designated at a
particular point in time may not include all of the habitat areas that
we may later determine are necessary for the recovery of the species.
For these reasons, a critical habitat designation does not signal that
habitat outside the designated area is unimportant or may not be needed
for recovery of the species. Areas that are important to the
conservation of the species, both inside and outside the critical
habitat designation, will continue to be subject to: (1) Conservation
actions implemented under section 7(a)(1) of the Act; (2) regulatory
protections afforded by the requirement in section 7(a)(2) of the Act
for Federal agencies to ensure their actions are not likely to
jeopardize the continued existence of any endangered or threatened
species; and (3) the prohibitions found in section 9 of the Act.
Federally funded or permitted projects affecting listed species outside
their designated critical habitat areas may still result in jeopardy
findings in some cases. These protections and conservation tools will
continue to contribute to recovery of the species. Similarly, critical
habitat designations made on the basis of the best available
information at the time of designation will not control the direction
and substance of future recovery plans, HCPs, or other species
conservation planning efforts if new information available at the time
of those planning efforts calls for a different outcome.
Prudency and Determinability
Section 4(a)(3) of the Act, as amended, and implementing
regulations (50 CFR 424.12) require that, to the maximum extent prudent
and determinable, the Secretary shall designate critical habitat at the
time the species is determined to be an endangered or threatened
species. Our regulations (50 CFR 424.12(a)(1)) state that the Secretary
may, but is not required to, determine that a designation would not be
prudent in the following circumstances:
(i) The species is threatened by taking or other human activity and
identification of critical habitat can be expected to increase the
degree of such threat to the species;
(ii) The present or threatened destruction, modification, or
curtailment of a species' habitat or range is not a threat to the
species, or threats to the species' habitat stem solely from causes
that cannot be addressed through management actions resulting from
consultations under section 7(a)(2) of the Act;
(iii) Areas within the jurisdiction of the United States provide no
more than negligible conservation value, if any, for a species
occurring primarily outside the jurisdiction of the United States;
(iv) No areas meet the definition of critical habitat; or
(v) The Secretary otherwise determines that designation of critical
habitat would not be prudent based on the best scientific data
available.
As discussed in the final listing rule published in Federal
Register (81 FR 20058, April 6, 2016) and reaffirmed here,
identification and mapping of critical habitat is not expected to
initiate or increase the threat of collection or vandalism (Factor B)
of green turtles in the terrestrial environment. The present or
threatened destruction, modification, or curtailment of habitat or
range is a threat to green turtles, and those threats in some way can
be addressed by section 7(a)(2) consultation measures. Additionally,
although the species is circumglobal and thus occurs outside of the
United States, the areas within the jurisdiction of the United States
serve a significant conservation value to the species for each of the
five DPSs. Our analysis of the best available scientific and commercial
information indicates there are areas within the range of each of the
five DPSs in the United States that meet the definition of critical
habitat. Therefore, because none of the circumstances enumerated in our
regulations at 50 CFR 424.12(a)(1) have been met and because the
Secretary has not identified other circumstances for
[[Page 46381]]
which this designation of critical habitat would be not prudent, we
have determined that the designation of critical habitat is prudent for
the green turtle. This document addresses the designation of critical
habitat within the green turtle's terrestrial environment for the five
DPSs.
Physical or Biological Features Essential to the Conservation of the
Species
In accordance with section 3(5)(A)(i) of the Act and regulations at
50 CFR 424.12(b), in determining which areas we will designate as
critical habitat from within the geographical area occupied by the
species at the time of listing, we consider the PBFs that are essential
to the conservation of the species and which may require special
management considerations or protection. The regulations at 50 CFR
424.02 define ``physical or biological features essential to the
conservation of the species'' as the features that occur in specific
areas and that are essential to support the life-history needs of the
species, including, but not limited to, water characteristics, soil
type, geological features, sites, prey, vegetation, symbiotic species,
or other features. A feature may be a single habitat characteristic or
a more complex combination of habitat characteristics. Features may
include habitat characteristics that support ephemeral or dynamic
habitat conditions. Features may also be expressed in terms relating to
principles of conservation biology, such as patch size, distribution
distances, and connectivity. For example, physical features essential
to the conservation of the species might include gravel of a particular
size required for spawning, alkaline soil for seed germination,
protective cover for migration, or susceptibility to flooding or fire
that maintains necessary early-successional habitat characteristics.
Biological features might include prey species, forage grasses,
specific kinds or ages of trees for roosting or nesting, symbiotic
fungi, or absence of a particular level of nonnative species consistent
with conservation needs of the listed species. The features may also be
combinations of habitat characteristics and may encompass the
relationship between characteristics or the necessary amount of a
characteristic essential to support the life history of the species.
In considering whether features are essential to the conservation
of the species, we may consider an appropriate quality, quantity, and
spatial and temporal arrangement of habitat characteristics in the
context of the life-history needs, condition, and status of the
species. These characteristics include, but are not limited to, space
for individual and population growth and for normal behavior; food,
water, air, light, minerals, or other nutritional or physiological
requirements; cover or shelter; sites for breeding, reproduction, or
rearing (or development) of offspring; and habitats that are protected
from disturbance.
We derive specific PBFs essential for the green turtle's
terrestrial environment from studies of this species' habitat, ecology,
and life history as described below. Additional information is in the
final listing rule published in the Federal Register on April 6, 2016
(81 FR 20058), and the Status Review of the Green Turtle (Chelonia
mydas) Under the Endangered Species Act (Seminoff et al. 2015, entire).
Based on recovery criteria described in the Recovery Plan for U.S.
Population of Atlantic Green Turtle (NMFS and USFWS 1991, entire), the
Recovery Plan for U.S. Pacific Populations of the Green Turtle (NMFS
and USFWS 1998, entire), and the Status Review of the Green Turtle
(Chelonia mydas) Under the Endangered Species Act (Seminoff et al.
2015, entire), we have determined that it is important to conserve the
following terrestrial environments for green turtles:
(1) Beaches that have the greatest aggregation, numerically,
considering number of crawls (turtle tracks) counted on a beach, or
clumping of nests, tracks, crawl occurrences, or numbers of basking
green turtles determined from a GIS analysis of the best available
scientific data, or USFWS consideration of records documenting turtle
nesting and basking activities (the latter only in the Central North
Pacific DPS) in each of the five DPSs, or the beaches serve as
internesting habitats with the greatest aggregation of nesting for the
DPSs, and they are well distributed within each DPS and representative
of total nesting within the DPS. Additionally, these areas include
``important nesting'' areas for all DPSs and ``important basking
areas'' for the Central North Pacific DPS as determined by a review of
recovery plans, 5-year reviews, and best available science. See also
our detailed methodology document (USFWS 2023, entire) available as
supporting material at <a href="https://www.regulations.gov">https://www.regulations.gov</a> at Docket No. FWS-
R4-ES-2022-0164).
(2) Beaches with the most basking turtles when compared with other
available beaches in the Central North Pacific DPS.
(3) Beaches that have a geographic spatial distribution of nesting
to ensure protection of genetic diversity.
(4) Beaches that can serve as expansion areas and provide
sufficient habitat for internesting (i.e., areas that support placement
of multiple nests by individual turtles along an undefined stretch of
beach during a nesting season), and basking turtles as populations
recover.
Generally, for areas where the greatest nesting occurs (Florida),
we determined the average nest density (nests/year/kilometer (km)) per
surveyed beach using a 10-year nesting dataset (2011-2020). Any
surveyed beach with zero total nests was removed from further analysis.
Within each management unit, average beach densities were separated
into quartiles--four parts, each containing a quarter of the density
values--to develop density classifications. For other areas outside of
Florida with less available data or infrequent surveys (i.e., all DPSs
except the Florida portion of the North Atlantic DPS), we conducted
extensive literature reviews, and obtained and used available survey
data from states, territories, commonwealths, and other organizations.
We made determinations based on review of this best available science
of where the green turtles are aggregating in abundance for nesting and
basking, designating critical habitat segments along those important
areas.
Sites for Breeding, Reproduction, or Rearing (or Development) of
Offspring
A successful reproductive season for green turtles relies on
synergism of (1) effects of foraging area ecological conditions on the
energetics of females (they have gained sufficient nutrition, including
internal fat stores, to migrate and mobilize fats into eggs), and (2)
beach environmental conditions facilitating female turtle emergence
onto and travel across the beach to an area above the high tidelines
for nest placement. These beaches must be able to support development
of embryos, hatching of eggs, hatchling emergence from eggs and sand
substrate, and hatchlings traversing across sand to sea. Female green
turtles migrate to nesting beaches if the quality and quantity of food
in foraging areas are sufficient to provide nutritional resources
needed for resource build-up within individual turtles over time
required for their reproductive cycle, including migration (Georges et
al. 1993, p. 2). Foraging likely contributes to increases of neutral,
or storage sub-carapacial fat, fueling energetically costly migration
and egg production (Kwan 1994, p. 257). Suitable beach structure for
digging (Georges et al. 1993, p. 2) and nearby terrestrial internesting
habitat (i.e., sufficient availability of habitat to
[[Page 46382]]
support turtles nesting multiple times in a season and across different
select areas of the beach landscape) is also required. Environmental
surface and subsurface conditions of nesting beaches must favor
embryonic development and survival (i.e., modest temperature
fluctuation to allow for temperature-dependent sex determination,
adequate humidity so eggs are not desiccated, and exchange of water,
oxygen, and carbon dioxide with other eggs in the clutch and
surrounding environment (Ackerman 1997, entire; Mrosovsky and Yntema
1980, p. 276; Mortimer 1982, p. 49; Mortimer 1990, pp. 809 and 811).
Additionally, hatchlings must emerge to onshore and offshore conditions
that enhance their chances of survival (e.g., less than 100 percent
depredation, appropriate offshore currents for dispersal) (Georges et
al. 1993, p. 2).
Terrestrial nesting habitat is the supralittoral zone, or area
above the spring high tide line of beaches (West 2004, p. 572), where
oviposition (egg laying), embryonic development, hatching, hatchling
emergence through sand substrate to the beach surface, and the initial
hatchling transit across the sand to sea occur. For instance, in
Raudal, Mexico, low-sloped beaches including vegetated dunes where the
distance between the ocean and the supralittoral zone is no greater
than 66 feet (ft) (20 meters (m)) are most frequently chosen for
nesting by green turtles (Zavaleta-Liz[aacute]rraga et al. 2013, p.
934). On beaches from Patrick Space Force Base southward through the
Archie Carr National Wildlife Refuge (NWR) in Brevard County, Florida,
sea turtle nests occur in the sand within a swath greater than 3.3 ft
(1 m) seaward from the dune line (generally defined where primarily sea
oat (Uniola paniculata) vegetation is most seaward) and inland over 10
ft (3 m) from this dune line. Green turtles occasionally will nest on
dunes. During a 3-year study conducted between 2014-2016, within two
different study sections of natural beach in Archie Carr NWR, 11.7
percent and 17.9 percent of the nesting occurrences were on the dune,
respectively, with the remaining nests placed seaward of the dunes
(University of Central Florida Marine Turtle Research Group 2016,
unpublished data; Mansfield 2022, pers. comm.). In an additional study
during 2016, 30.2 percent of marked green turtle study nests were
placed landward of the dune line (University of Central Florida Marine
Turtle Research Group 2016, unpublished data; Mansfield 2022, pers.
comm.).
For a beach to serve as nesting habitat, a nesting turtle must be
able to access it; however, anthropogenic structures (e.g., groins,
jetties, breakwaters, retaining walls, hardened embankments), as well
as natural features (e.g., offshore sand bars, hardened shorelines) can
act as barriers or deterrents to adult females attempting to access a
beach (Seminoff et al. 2015, p. 93). Adult females approaching nesting
beaches may encounter these structures and either crawl around them,
abort nesting for that night, or move to another section of beach to
nest. Plastic marine debris washed up on highly polluted green turtle
nesting beaches is a suspected barrier for turtle nesting success (the
proportion of nesting attempts that result in a nest) and hatchling
access to the sea and has potential to cause threats including
entanglement and entrapment (G[uuml]ndo[gbreve]du et al. 2019, p. 143).
Increasingly abundant, large mats of sargasso macroalgae washed onto
beaches have been barriers, impeding nesting turtle access on some
areas of Mexico, Barbados, and Puerto Rico (Ch[aacute]vez et al. 2020,
p. 2; Langin 2018, p. 1,157). While not a significant concern on other
beaches (Rodr[iacute]guez-Mart[iacute]nez et al. 2021, pp. 1-7), this
is an issue requiring further study on effects to green turtles.
Both nesting and hatchling sea turtles are adversely affected by
presence of artificial lighting on or near beaches (Witherington and
Martin 2000, pp. 2-5 and 12-13). Artificial lighting deters adult
female green turtles from emerging from the ocean to nest, and green
turtles emerging onto a beach abort nesting attempts at a greater
frequency in lighted areas (Witherington 1992, pp. 34-37). Because
adult females rely on visual brightness cues to find their way back to
the ocean after nesting, those turtles that nest on artificially
lighted beaches may become disoriented by artificial lighting and have
difficulty finding their way back to the ocean (Witherington 1992, p.
38). Hatchling sea turtles have a robust seafinding behavior guided by
visual cues (e.g., Mrosovsky and Carr 1967, pp. 228-230; Dickerson and
Nelson 1989, pp. 41-43; Salmon et al. 1992, pp. 72-75; Lohmann et al.
1997, pp. 110-116; Lohmann and Lohmann 2003, pp. 45-47). Hatchlings
unable to find the ocean, or delayed in reaching it, due to turtles'
strong attraction to artificial beachfront lighting visible on the
nesting beach, are likely to incur high mortality from dehydration,
exhaustion, or predation (Carr and Ogren 1960, pp. 33-46; Ehrhart and
Witherington 1987, pp. 97-98; Witherington and Martin 2000, pp. 12-13).
In general, any artificial light that can be seen from the beach could
affect sea turtles, particularly if they are directly pointing to the
nesting area; if the light fixture is not shaded to a certain degree;
or if the light bulb emits a light below wavelengths that are generally
amber, orange, or red. Therefore, green turtles need habitat that is
dark and free from artificial lighting.
Habitats Protected From Disturbance or Representative of the
Historical, Geographic, and Ecological Distributions of the Species
Sea turtle nesting habitat is part of the highly dynamic and
continually shifting coastal system, which includes oceanfront beaches,
barrier islands, and inlets. These geologically dynamic coastal regions
are controlled by natural coastal processes, including littoral or
longshore drift (processes by which sediments move along shorelines),
onshore and offshore sand transport (natural erosion or accretion
cycle), and tides and storm surge. These physical processes benefit sea
turtles by maintaining nesting beaches through repeated cycles of
destruction, alteration, and recovery of beaches and adjacent dune
habitats. Coastal processes happen over a wide range of spatial and
temporal scales. Wind, waves, tides, storms, and stream discharges are
important driving forces in coastal zones (Dingler 2005, p. 163). Thus,
it is important that, where it can be allowed, natural processes be
maintained.
Coastal dynamic processes will be affected by accelerated sea level
rise and an increase in intensity of coastal storms resulting from
climate change. Rates of sea level rise have increased beyond those
that have occurred over recent millennia and continue to accelerate
(Intergovernmental Panel on Climate Change (IPCC) 2021, p. 77). Over
the period 1901 to 2018, global mean sea level rose by 0.7 ft (0.2 m)
(likely range of 0.5 to 0.8 ft (0.15 to 0.25 m)) (IPCC 2021, p. 77).
This rate of sea level rise is faster than during any century over the
previous three millennia (high confidence) (IPCC 2021, p. 77). Expected
sea level rise will increase the frequency and height of high-water
events, such as storm surge and high tide flooding, which contributes
to coastal erosion (Sweet et al. 2022, p. 28). Nationally, the
frequency of moderate high tide flooding events (approximately 2.8 ft
(0.85 m) above current mean higher high water) in 2050 is expected to
be 10 times greater than in 2020 (Sweet et al. 2022, pp. 41-42). Sea
level rise also contributes to increased wave heights during storm
[[Page 46383]]
events (Sweet et al. 2022, p. 41) risking erosion of exposed beaches.
Extreme wave heights have increased in the North Atlantic by around 0.3
inch (in) (0.8 centimeter (cm)) per year over the period 1985 to 2018
(medium confidence) (IPCC 2019, p. 67).
Green sea turtles are vulnerable to inundation and erosion of sandy
beaches, which is typically caused or accelerated by climate-driven sea
level rise (Fish et al. 2005, entire; Hawkes et al. 2009, entire;
Poloczanska et al. 2009, p. 167; Seminoff et al. 2015, p. 325;
Vousdoukas et al. 2020, entire). Shorelines are expected to undergo
dramatic reconfigurations over the next century because of accelerating
sea level rise (U.S. Climate Change Science Program (USCCSP) 2009, pp.
13, 44, 50). Sandy beaches serving as habitat for green turtles will
likely be locally or regionally inundated or eroded, but replacement
habitats are likely to re-form along the shoreline in its new position
(Scavia et al. 2002, p. 152; USCCSP 2009, p. 186). However, if
shorelines experience a decades-long period of high instability and
landward migration (i.e., under higher rates of sea level rise), the
formation rate of new beach habitats may be slower than the rate of
loss of existing habitats (Iwamura et al. 2013, p. 6). Additionally,
low-lying and narrow islands, such as those along the U.S. Gulf and
Atlantic coasts, may disintegrate rather than migrate (Titus 1990, p.
67; IPCC 2014, p. 15), representing a net loss of green turtle habitat.
Sea turtles evolved in a dynamic ecosystem, and they are dependent
upon the ever-changing beach features for their continued survival and
recovery. Sea turtles require nesting beaches where natural coastal
processes, or activities that mimic these natural processes, will be
able to continue well into the future to allow formation of suitable
beaches for nesting. However, climate-driven change that may be
accelerated, or result in permanent habitat loss, may present a
challenge beyond evolutionary adaptations of green turtles and other
species reliant on these dynamic coastal habitats.
As climate change is occurring and affecting shorelines, additional
types of green turtle habitat to consider as important nesting areas
are artificially created or maintained habitat, including beach
renourishment and dune restorations, that mimic natural conditions.
Artificial habitat types mimic natural conditions described above for
nesting beach access, nest site selection, nest construction, egg
deposition and incubation, hatchling emergence through the sand
substrate to the beach surface and movement across the beach to sea.
Habitat modification and loss occurs with beach stabilization
activities that prevent natural transfer, erosion, and accretion of
sediments along ocean shorelines. Beach stabilization efforts that may
impact green turtle nesting include beach renourishment and dune
restoration, sediment dredging and disposal, inlet channelization, and
construction of jetties and other hard structures. However, when sand
placement activities result in beach habitat that mimics natural beach
habitat conditions, impacts to sea turtle nesting habitat are
minimized. Also, any projects that address erosion or shoreline
protection should contain measures to reduce negative effects or be
temporary in nature, so they may have fewer impacts on green turtles.
Therefore, green turtles need habitat that is dynamic by nature and
facilitates sand movement, allowing for successful nesting within
natural habitats or, if necessary, artificially created habitats that
mimic natural beaches and support successful sea turtle nesting.
Sites for Basking (Central North Pacific DPS)
Basking, where green turtles emerge from the water onto exposed
land, is an overall rare green turtle behavior but one that is observed
in the Hawaiian archipelago (Central North Pacific DPS), Galapagos
Islands, and Australia. It is possible that basking is an adaptive
response to cooler thermal environments by raising core body
temperatures and escaping ocean predation pressure in those regions
(Whittow and Balazs 1982, pp. 133-138; Green 1998, p. 64; Limpus 2008,
p. 15). This behavior has been anecdotally linked to escaping tiger
shark predation in French Frigate Shoals (Lalo) (Whittow and Balazs
1982, p. 138).
Green turtles in the Central North Pacific DPS use terrestrial
habitats such as gradually sloping beaches (sandy, corally, or gravel
substrate), emergent sandy lands, sand spits, low shelving reef rocks,
or sand supplemented restoration areas that are accessible from the
ocean. These basking areas are free of obstacles that impede green
turtles from coming ashore. Although many areas may be accessible for
basking, certain areas of coastline are more often used by green
turtles in the Central North Pacific DPS for this activity. These areas
may be located close to preferred foraging and internesting areas to
allow for relatively undisturbed periods. For the Central North Pacific
DPS, basking areas are defined as natural and artificial coastlines
that are accessible to green turtles and used regularly or
intermittently. Basking areas are essential to the Central North
Pacific DPS of green turtles because these areas provide space that
supports natural behaviors important to health and development, such as
resting and thermoregulation. Therefore, green turtles in the Central
North Pacific DPS need unobstructed access to land out of the water to
emerge onto.
Summary of Essential Physical or Biological Features (PBFs)
We derive the specific PBFs essential to the conservation of green
turtle within its terrestrial environment from studies of the species'
habitat, ecology, and life history as described below. We have
determined that green turtles need terrestrial habitat areas where
natural coastal processes will be able to continue well into the future
to allow for the landward migration of coastlines in response to sea
level rise. Therefore, based on the information above, we identify
terrestrial areas that support natural coastal processes, as well as
localized areas where artificially created, maintained, or enhanced
habitat supports important green turtle nesting or basking areas, as
PBFs for the species. These features are as follows:
(1) Extra-tidal or dry sandy beaches from the mean high water
line--the line on a chart or map that represents the intersection of
the land with the water surface at the elevation of mean high water
line--to areas of beach landward of the mean high water line and which
contain the characteristics described herein. These beaches include:
(a) Habitat for green turtles to transit across beaches and for
nest placement that includes: (i) relatively unimpeded wet and dry sand
or nearshore access areas from the ocean to the beach for nesting
females and from the beach to the ocean for both post-nesting females
and hatchlings and (ii) drier sand areas located above mean high water
in the supralittoral zone to avoid being inundated frequently by high
tides.
(b) Sand substrate that (i) allows for suitable nest construction,
(ii) is suitable for facilitating gas diffusion conducive to embryo
development, (iii) can develop and maintain temperatures and a moisture
content conducive to embryo development, and (iv) allows for emergence
of hatchlings from eggshells, through sand substrate to the beach
surface.
(2) Nesting beach habitat with sufficient darkness such that
nesting turtles are not deterred from emerging onto the beach and
hatchlings and post-nesting females can orient to the sea.
[[Page 46384]]
(3) Natural coastal processes or artificially created or maintained
habitat mimicking natural conditions. This includes artificial habitat
types that mimic natural conditions described in PBFs 1 and 2 above for
beach access, nest site selection, nest construction, egg deposition
and incubation, and hatchling emergence and movement to the sea.
(4) Within the range of the Central North Pacific DPS, basking
habitat that includes access to natural and artificial coastlines with
gradually sloping beaches (sandy, corally, or gravel substrate),
emergent sandy lands, sand spits, low shelving reef rocks, as well as
relatively unimpeded nearshore access from the ocean to the beach.
Special Management Considerations or Protection
When designating critical habitat, we assess whether the specific
areas within the geographical area occupied by the species at the time
of listing contain features which are essential to the conservation of
the species and which may require special management considerations or
protection. The features essential to the conservation of green turtles
may require special management considerations or protection to reduce
the threats to the species. Threats to the green turtle are described
in the final listing rule for each of the five DPSs (81 FR 20058, April
6, 2016; pp. 20077-20079, 20081-20083), noting that some information/
descriptions/references used herein are new since the final listing
determination. The threats and associated special management
considerations or protection addressed in this document are specific to
the PBFs. For green turtle habitat in the terrestrial environment, we
grouped primary threats to the PBFs that may require special management
considerations or protection into the following 12 threat categories.
Each of these threats and associated special management considerations
or protection are summarized below.
(1) Climate change, including sea level rise, changes in sand
temperature, and increase in storm frequency. Potential impacts of
climate change to the five DPSs include loss of habitat and nests due
to beach erosion and repeated inundation caused by rising sea levels
and more frequent, intense storm events; and skewed hatchling sex
ratios from rising incubation temperatures (Fish et al. 2005, pp. 489-
490; Fish et al. 2008, p. 336; Fuentes et al. 2010, entire; Fuentes et
al. 2020, entire; Grose et al. 2020, pp. 547-548; Hawkes et al. 2009,
pp. 139-141; Poloczanska et al. 2009, pp. 164-175). Examples of special
management considerations or protection that could mitigate for threats
of changing climate, including sea level rise, changes in sand
temperature, and increase in storm frequency may include (but not be
limited to): conducting coastal sand placement to retain sand on
beaches for turtle nesting, hatching and hatchling emergence, and
traversing the sand; and conducting restoration and debris cleanup
after storms.
(2) Recreational beach use, including human presence (e.g., beaches
allowing dogs and special events), mechanized beach cleaning, and beach
driving, the latter including essential and nonessential off-road
vehicles, all-terrain vehicles, and recreational access and use. Human
presence on beaches at night during green turtle nesting seasons can
reduce the quality of nesting habitat by deterring or disturbing
nesting turtles and causing them to avoid otherwise suitable habitat.
Mechanical beach cleaning with vehicles and associated equipment
reduces natural sand-trapping abilities of beaches and contributes to
their destabilization (Defeo et al. 2009, p. 3), as well as displaces
sand that turtles rely on, including lowering the substrate and
changing beach topography (Nelson Sella and Fuentes 2019, p. 186).
Beach driving reduces green turtle nesting habitat quality by creating
vehicle ruts, increased sand compaction, and increased erosion (Hosier
et al. 1981, p. 160; Cox et al. 1994, p. 27; Hughes and Caine 1994, p.
237; Mann 1977, p. 96), and nighttime driving can deter females from
nesting, disorient hatchlings, and can cause direct mortality by
vehicle encounters. Examples of special management considerations or
protection that could reduce the threat of recreational beach use may
include (but not be limited to): implementing and enforcing policies
that restrict unleashed pets during nesting season, conducting cleaning
activities seaward of the high tide line and only during the day, and
reducing vehicular beach access hours during the sea turtle nesting
season.
In the North Atlantic DPS, mechanized beach cleaning is common
along the Florida coast but uncommon in Puerto Rico. Large-scale
mechanized beach cleaning has occurred in Puerto Rico associated with
hurricane debris management such as after Hurricane Mar[iacute]a in
2017 and Hurricane Fiona in 2022; the same is true for the South
Atlantic DPS regarding mechanized beach cleaning. However, this
practice does not occur in the Pacific DPSs.
(3) Nonnative vegetation. Nonnative vegetation may alter the canopy
cover percentage, resulting in various incubation temperatures (Wheeler
et al. 2011, p. 488), which impacts hatchling sex ratios. Roots, live
trees or plants, or deadfall of nonnative vegetation can also create
impediments to adult and hatchling turtles, as well as interfere with
nest digging (Wheeler et al. 2011, p. 488). Examples of special
management considerations or protection that could reduce the threat of
nonnative vegetation may include (but not be limited to): conducting
habitat restoration or management and enforcing rules to prevent
invasive plants from being transported into the unit.
(4) Terrestrial source debris on beaches and marine debris that
washes ashore (e.g., recreational beach equipment, plastics, and
recreational or industrial fishing gear). Terrestrial debris from
beaches and marine debris that washes ashore (e.g., recreational beach
equipment, plastics, derelict fishing gear) can deter green turtles
from coming shore and also cause entanglement and entrapment of both
adults and hatchlings. Examples of special management considerations or
protection that could reduce the threat of terrestrial debris may
include (but not be limited to): installing and maintaining fishing
line recycling containers at fishing piers and beach entrances and
conducting beach cleanups that remove potentially entangling debris.
(5) Beach sand placement activities, including beach nourishment
with associated beach, dune, or berm restoration, inlet sand bypassing,
dredge material disposal, dune or berm construction, or emergency sand
placement after natural disasters. Beach sand placement activities can
include beach nourishment, beach restoration, inlet sand bypassing,
dredge material disposal, dune construction, emergency sand placement
after natural disaster, berm construction, and dune and berm planting.
These types of activities can result in less suitable or unsuitable
habitat for nesting turtles, such as sand compaction, and result in
abandoned nesting attempts on nourished beaches (Trindell et al. 1998,
p. 82; Ernest and Martin 1999, pp. 47-49; Herren 1999, p. 44). Examples
of special management considerations or protection that could reduce
the threat of beach sand placement activities may include (but not be
limited to): restricting sand placement activities to occur outside of
the nesting season and using beach quality sand suitable for sea turtle
[[Page 46385]]
nesting, successful incubation, and hatchling emergence.
While threats to the terrestrial PBFs are similar in the Atlantic
and the Pacific, some differences exist. For example, in the North
Atlantic DPS, large-scale beach renourishment projects occur frequently
on most beaches along the Florida coast, although they are conducted
infrequently in Puerto Rico (with no activities occurring in Puerto
Rico's proposed green turtle critical habitat segments). However, beach
renourishment projects occur infrequently in the South Atlantic DPS and
the three Pacific DPSs.
(6) Shoreline alterations and stabilization measures (e.g., erosion
control structures, such as groins, breakwaters, or jetties; inlet
relocation; inlet dredging; nearshore dredging; dredging and deepening
channels; and sand mining). These in-water structures have profound
effects on adjacent beaches (Kaufman and Pilkey 1979, p. 194). For
example, following construction, the presence of jetties and groins may
interfere with nesting turtle access to the beach, result in a change
in beach profile and width (downdrift erosion, loss of sandy berms, and
escarpment formation), trap hatchlings, and concentrate predatory
fishes (Wilson et al. 2019, p. 577), resulting in higher probabilities
of hatchling predation (although jetties and groins are known also to
provide some benefits to beach habitat in some instances). Examples of
special management considerations or protection that could reduce the
threat of shoreline alterations and stabilization measures may include
(but not be limited to): conducting dune restoration/enhancement and
conducting beach renourishment.
(7) Coastal development, including residential development,
commercial development, and associated activities such as coastal
armoring (e.g., seawalls, geotextile tubes, rock revetments, sandbags,
emergency temporary armoring); and activities associated with
construction, repair, and maintenance of upland structures, stormwater
outfalls, and piers. Coastal development not only causes loss and
degradation of suitable green turtle nesting habitat, but it also
disrupts powerful coastal processes by accelerating erosion and
interrupting the natural shoreline migration. This may in turn cause
the need to protect upland structures and infrastructure by armoring
(i.e., any rigid structure placed parallel to the shoreline on the
upper beach to prevent both landward retreat of the shoreline and
inundation or loss of upland property by flooding and wave action
(Kraus and McDougal 1996, p. 692)). Armoring is known to cause changes
in, additional loss of, or adverse impacts to the remaining sea turtle
habitat (National Research Council 1990, p. 77; USFWS 2015, p. 51).
Examples of special management considerations or protection that could
reduce the threat of coastal development may include (but not be
limited to): considering alternatives to coastal armoring, such as
living shorelines, dune restoration/enhancement, or beach
renourishment; and encouraging State and local governments to adopt
policies that support less coastal development and to employ full-time
enforcement officers that can educate the public about coastal
regulations and have the power to prosecute violations of local codes
and laws.
(8) Artificial lighting, including direct and indirect lighting,
skyglow, and bonfires. Both nesting and hatchling sea turtles are
adversely affected by the presence of artificial lighting on or near
the beach (Windle et al. 2018, entire; Salmon 2003, entire;
Witherington and Martin 2000, pp. 2-5). Because adult females rely on
visual brightness cues to find their way back to the ocean after
nesting, those turtles that nest on lighted beaches may become
disoriented by artificial lighting and have difficulty finding their
way back to the ocean (Brei et al. 2020, p. 302; Silva et al. 2017,
entire). Although sea turtles prefer dark beaches for nesting, many do
nest in lighted areas (Colman et al. 2020, pp. 1,146-1,147). In doing
so, they place the lives of their offspring at risk as artificial
lighting can impair the ability of hatchlings to properly orient to the
ocean once they leave their nests (Witherington and Martin 2000, pp. 7-
13). Examples of special management considerations or protection that
could reduce the threat of artificial lighting may include (but not be
limited to): conducting work (construction or associated staging area
for coastal or in-water work) during daylight hours to reduce turtle
disturbance and prevent turtle attraction to artificial lights, and
encouraging use of wildlife-friendly lighting in coastal areas for new
construction or replacing existing lighting to reduce the direct and
ambient lighting on the beach and reduce disorientation to nesting
females and hatchlings.
(9) Beach erosion, including erosion due to aperiodic, short-term
weather-related erosion events, such as atmospheric fronts,
northeasters, tropical storms, and hurricanes. Storm events and
tsunamis can result in the direct loss of sea turtle nests, either by
erosion or washing away of the nests by wave action and inundation or
``drowning'' of the eggs or preemergent hatchlings within the nest, or
indirectly affect sea turtles by causing the loss of nesting habitat.
Depending on their frequency, storms can affect sea turtles on either a
short-term basis (nests lost for one season and temporary loss of
nesting habitat) or a long-term basis (habitat unable to recover due to
frequent storm events). Examples of special management considerations
or protection that could reduce the threat of beach erosion may include
(but not be limited to): implementing dune restoration projects to help
contain sediment during storms and planting native vegetation to
stabilize beach habitat.
(10) Natural disasters such as cyclones, hurricanes, typhoons, and
tsunamis and responses to disasters, such as debris removal and berm
construction. These natural events have also been shown to cause severe
beach erosion and likely have negatively affected hatching success at
many green turtle nesting beaches, especially in areas already prone to
erosion (Van Houtan and Bass 2007, entire). Any significant storm event
that may develop could disrupt green turtle nesting activity and
hatchling production (Van Houtan and Bass 2007, entire), but would be
unlikely to result in whole-scale losses over multiple nesting seasons.
However, when combined with the effects of sea level rise, there may be
increased cumulative impacts from future storms (Baker et al. 2006, pp.
7-9). Examples of special management considerations or protection that
could reduce the threat of naturally caused disasters may include (but
not be limited to): conducting beach and dune restoration, conducting
emergency berm construction and repair actions, including using beach
quality sand suitable for nesting sea turtles during berm construction,
and ensuring placement and design of berms that mimic the natural dune
system.
(11) Human-caused disasters and response to disasters, such as oil
spills and oil cleanup activities. Oil spills in the vicinity of
nesting beaches just prior to or during the nesting season place
nesting females, incubating egg clutches, and hatchlings at significant
risk of direct exposure to contaminants (Fritts and McGehee 1982, p.
38; Lutcavage et al. 1997, p. 395; Witherington 1999, p. 183) and
result in negative effects to nesting habitat. Oil cleanup activities
can also be harmful. For example, earth-moving equipment can dissuade
females from nesting and destroy nests, containment booms can
[[Page 46386]]
entrap hatchlings, and lighting from nighttime activities can misdirect
turtles (Witherington 1999, p. 183). Examples of special management
considerations or protection that could reduce the threat of human-
caused disasters and response to disasters may include (but not be
limited to): prohibiting placement of oil or fuel transfer stations
near green turtle nesting beaches and ensuring communication with
external partners on preferred response methodologies in areas where
there are risks of oil spills in green turtle habitat.
(12) Military testing and training activities, including troop
presence, pyrotechnics and nighttime lighting, vehicles and amphibious
watercraft usage on the beach, helicopter drops and extractions, live-
fire exercises, placement and removal of objects on the beach,
unexploded ordnance management, and space launch activities with
associated artificial lighting infrastructure. The presence of soldiers
and other personnel on the beach, particularly at night during nesting
and hatching season, could result in harm or death to individual
nesting turtles or hatchlings, as well as deter females from nesting.
Basking green turtles could also be deterred from basking.
Additionally, unexploded ordnances are still present from the military
using these areas for bombing training in the past, and search and
removal efforts in green turtle nesting and basking habitat can have
impacts to the habitat through the removal of vegetation and creation
of holes. Examples of special management considerations or protection
that could reduce the threat of military testing and training
activities and unexploded ordnance management may include (but not be
limited to): timing training and missions outside nesting season or
shifting the physical extent of activities to resolve location
conflicts and filling in holes and restoring beach profiles to suitable
conditions after ordnance removal or mission completion.
Criteria Used To Identify Critical Habitat
As required by section 4(b)(2) of the Act, we use the best
scientific data available to designate critical habitat. In accordance
with the Act and our implementing regulations at 50 CFR 424.12(b), we
review available information pertaining to the habitat requirements of
the species and identify specific areas within the geographical area
occupied by the species at the time of listing and any specific areas
outside the geographical area occupied by the species to be considered
for designation as critical habitat. Within areas of the species' range
under U.S. jurisdiction, and following our evaluation of all suitable
green turtle habitat within each of the five DPSs, we are not currently
proposing to designate any areas outside the geographical area occupied
by the species. We have not identified any unoccupied areas that meet
the definition of critical habitat, and we have determined that the
occupied areas are sufficient to promote the conservation of the
species.
A detailed step-down methodology was developed for identifying
proposed critical habitat areas (see the supplemental ``Methodology''
document (USFWS 2023, entire) available on the internet at <a href="https://www.regulations.gov">https://www.regulations.gov</a> under Docket No. FWS-R4-ES-2022-0164). In summary,
for areas within the geographical area occupied by the species at the
time of listing, specifically referring to May 6, 2016, which is the
effective date for the April 6, 2016, final listing rule (81 FR 20058),
we delineated critical habitat unit boundaries within the terrestrial
environment and under U.S. jurisdiction where nesting has been
documented annually (or documented regularly but not necessarily
annually due to some outlying islands that are difficult to access),
since the time the DPSs were listed in 2016 (81 FR 20058, April 6,
2016). This time-period represents the most recent and consistent data
sets of nest or track (crawl) count surveys available from within the
ranges of each DPS. Green turtles are a circumglobal species (NMFS and
USFWS 1998, p. 1) that nest on sandy beaches, and in the Central North
Pacific DPS also bask on sandy beaches and low-lying reef and rocks.
Thus, sandy beaches and low-lying reef and rocks (the latter
specifically in the Central North Pacific DPS) within the latitudinal
range of the species, particularly in tropical or subtropical regions,
could potentially host green turtles. Some of these areas are
logistically remote and have never or rarely been surveyed; however,
they were assumed to host green turtles at the time of listing because
islands with similar geomorphology at similar latitudes have documented
green turtle nesting and basking activity.
For the three Pacific DPSs, we also relied on additional
information to determine occupancy at the time of listing in remote
areas and islands where surveys have not regularly occurred, both prior
to and after the time of listing in 2016. Essentially, the strategy to
designate critical habitat for the three Pacific DPSs differs from the
two Atlantic DPSs due to: (1) limited data availability and quality;
(2) the population size, site distribution, and potential effects of
lost habitat; and (3) the potential for habitat destruction or
modification (e.g., development pressures, climate change, limited
local support for green turtle conservation practices) (USFWS 2023, pp.
14-18). Overall, we used the following summarized criteria for
determining proposed critical habitat for green turtle within the
terrestrial environment:
(1) We evaluated the two green turtle recovery plans that address
the Central North Pacific, Central South Pacific, Central West Pacific,
North Atlantic, and South Atlantic DPSs and considered those areas
described in the plans as source beaches, primary nesting areas,
important nesting beaches, and key nesting beaches (hereafter referred
to as ``important nesting beaches'' (NMFS and USFWS 1998, entire; NMFS
and USFWS 1991, entire)). Given these recovery plans are 25 and 32
years old, respectively, we also considered available new information
and expert knowledge regarding these or other important areas within
each of the DPSs. Designating these important nesting beaches supports
the overarching conservation strategies described in the recovery plans
for each of the DPSs.
(2) We evaluated the best available information (e.g., literature,
survey reports, information from partners and experts) to identify the
extent of nesting beaches as the area from the mean high-water line
(MHWL) to its deepest extent inland, including all beach crest
vegetation and area behind the primary dune (if present) for features
that provide for nesting, incubation, hatching, hatchling emergence
from eggshells and through the sand substrate, and traversal across
beaches. We also considered dry and wet sands leading back to the ocean
to support hatchling transit to the sea in addition to allowing for
post-nesting and basking turtles to return to the ocean.
(3) Using Geographic Information Systems (GIS) software, satellite
imagery, and existing land cover and shoreline products, we identified
nesting habitat in the Atlantic from the MHWL to the toe of the
secondary dune, any human-made structure, natural obstructions (e.g.,
cliffs, rock outcrops) or to 33 ft (10 m) inland of vegetation. We
identified nesting habitat in the Pacific from the MHWL to any human-
made structure or 50 ft (15 m) inland of the MHWL (a larger distance
than the Atlantic to account for beaches that stretch inland on remote
islands with little to no vegetation). Additionally, within the Pacific
DPSs on small, predominantly sand islands, whole islands may have been
designated in
[[Page 46387]]
instances where no physical obstructions were present. If applicable,
we also examined aerial imagery to ensure that areas included as
proposed critical habitat are not currently inundated, as compared to
areas that may be underwater decades from now.
(4) Where physical features to be used as critical habitat unit
boundaries were highly dynamic (i.e., inlets, sandy shoals, barrier
islands, and oceanfront beaches that are controlled by natural coastal
processes and may shift over time), unit boundaries were distinguished
using records of green turtles nesting in that specific area.
(5) Where natural, artificial, or geopolitical features or land
ownership could not be used for unit boundaries, boundaries were
delineated by geographic means (latitude and longitude, decimal degree
points).
(6) We evaluated and included as proposed critical habitat beaches
located adjacent to important or high-density beaches (containing PBFs
essential to the conservation of green turtles); these adjacent areas
are occupied by the species and also currently support green turtle
nesting. This adjacent beach habitat serves as expansion area should
the current important nesting beach area become significantly degraded,
or temporarily or permanently lost, through natural processes or upland
development, as well as supports the green turtle's internesting
behavior (i.e., turtles nesting multiple times in a season and across
different select areas of the beach landscape).
(7) We applied other DPS-specific methodology (as described in our
supplemental ``Methodology'' document (USFWS 2023, entire) available on
the internet at <a href="https://www.regulations.gov">https://www.regulations.gov</a> under Docket No. FWS-R4-ES-
2022-0164) based on specific factors within each DPS, such as (but not
limited to):
(a) For the three Pacific DPSs, and in the absence of available
nesting surveys, beaches were selected using the best available nesting
records over a 15-year period between 2005 to 2020. Given the lifespan
of the green turtle, we found it reasonable to assume the areas were
occupied at the time of listing based on these data. We identified
beaches throughout each island, islet, and oceanic atoll with
relatively high nesting activity. In some cases, additional nesting
beaches with lower nesting activity or beaches with historical reports
of green turtle nesting were selected (i.e., expansion areas) to
support resiliency, representation, and redundancy within a DPS.
Additionally, for undeveloped or uninhabited islands or areas, the
amount of land inward of the MHWL increased from 50 ft (15 m; as noted
in criteria (3), above) to include the entire island if the PBFs were
present or natural or human-made structures obstructed inward progress
(noting there are some areas that are currently uninhabited by humans
but were previously occupied by Department of Defense (DoD) personnel
who had constructed manmade structures, some of which remain today and
may obstruct inward progress by turtles).
(b) For the Central North Pacific DPS, we identified basking
habitat information independent from nesting area information,
including information provided by local technical experts and records
from 2005 to 2021. Given the lifespan of the green turtle, we found it
reasonable to assume the areas were occupied at the time of listing
based on these data. Our strategy for selecting shoreline areas for
basking also considered shoreline areas throughout each island with
relatively high basking activity, and some beaches that can serve as
both expansion areas while also providing sufficient habitat to
accommodate basking green turtles as the populations recover. Where
physical features to be used as critical habitat unit boundaries were
highly dynamic (i.e., sandy shoals, emergent sandy lands, oceanfront
beaches, and low shelving reef or rock that are controlled by natural
coastal processes and may shift over time), unit boundaries were
distinguished using records of green turtles basking in that specific
area.
(c) For the Central South Pacific DPS, we took into account that
the green turtle population in this portion of its range is
characterized by geographically widespread nesting at low levels of
abundance, mostly in remote low-lying oceanic atolls. We examined the
best available information within this DPS to ensure spatial
distribution of important nesting beaches within the DPS. Although some
of these areas do not include regular or extensive green turtle survey
information, the best available information indicates these areas were
occupied at the time of listing (and are still occupied) by green
turtles based on documented nesting activity at adjacent or nearby
beaches, islands, or atolls.
(d) For the Central West Pacific DPS, we took into account that the
green turtle population in this DPS is dominated by insular nesting
(i.e., nesting on a long chain of islands), resulting in a relatively
small nesting population spread across an expansive area that is
roughly 2,500 mile (mi) (4,023 kilometer (km)) wide (Palau to the
Marshall Islands) and 2,500 mi (4,023 km) long (Ogasawara, Japan to the
Solomon Islands) (Seminoff et al. 2015, p. 259). We examined the best
available information within this DPS to ensure spatial distribution of
important nesting beaches within the DPS. Similar to the Central South
Pacific DPS, although some of these areas do not include regular or
extensive green turtle survey information, the best available
information indicates these areas were occupied at the time of listing
(and are still occupied) by green turtles based on documented nesting
activity at adjacent or nearby beaches, islands, or atolls.
(e) For the North Atlantic DPS, we used available nest count
abundance/density data (including information associated with the
Florida Fish and Wildlife Research Institute's recognized green turtle
management units and preliminary unpublished analysis of genetics
information (Shamblin et al. 2022, entire)) to determine adequate
geographic spatial distribution of high-density nesting areas,
including genetics and geographical features that can influence turtle
behavior.
(f) For the South Atlantic DPS, nest crawl counts were used
depending on regionally available data and applied to the main
geographic nesting distribution within the DPS (i.e., the U.S. Virgin
Islands). Nesting beaches were identified based on 25-100 nesting
crawls per year category or larger (Dow et al. 2007, p. 13; Eckert and
Eckert 2019, p. 13).
Once this methodology was applied and evaluated across the ranges
of each DPS where green turtles nest, or where they bask in the Central
North Pacific DPS, units were drawn based on the most recent available
aerial or satellite imagery. We propose to designate as critical
habitat lands that we have determined were occupied at the time of
listing that contain one or more of the PBFs that are essential to
support life-history processes of the species, and that may require
special management considerations or protection.
We propose to designate as critical habitat 101 units (31 in the
Central North Pacific DPS, 6 in the Central South Pacific DPS, 23 in
the Central West Pacific DPS, 33 in the North Atlantic DPS, and 8 in
the South Atlantic DPS) based on one or more of the PBFs within the
terrestrial environment being present to support the green turtle's
life-history processes. Some units contain all of the identified PBFs
and support multiple life-history processes, while other units contain
only some of the PBFs necessary to support the green turtle's
particular use of that habitat.
For green turtles, most of the units contain highly dynamic barrier
beaches
[[Page 46388]]
and extratidal seashore areas that have the potential to vary over
time. In other words, the precise location of the PBFs may shift
because of the intrinsically dynamic nature of shorelines and due to
sea level rise. In general, the PBFs we describe are the extratidal
areas and sandy beaches from the MHWL to inland areas of beach that do
not contain the PBFs.
The proposed critical habitat designation is defined by the map or
maps, as modified by any accompanying regulatory text, presented at the
end of this document under Proposed Regulation Promulgation. We include
more detailed information on the boundaries of the terrestrial proposed
critical habitat designation in the discussion of individual units,
below. We will make the coordinates or plot points or both on which
each map is based available to the public at <a href="https://www.regulations.gov">https://www.regulations.gov</a> at Docket No. FWS-R4-ES-2022-0164, and on the
USFWS's website at <a href="https://www.fws.gov/office/florida-ecological-services/library/green-sea-turtle">https://www.fws.gov/office/florida-ecological-services/library/green-sea-turtle</a>.
When determining proposed critical habitat boundaries, we made
every effort to avoid including developed areas such as lands covered
by buildings, pavement, and other structures (e.g., docks, maintained
rights-of-way, work yards, stormwater facilities, and hardened
shorelines) because such lands lack PBFs necessary for the green
turtle. The scale of the maps we prepared under the parameters for
publication within the Code of Federal Regulations may not reflect the
exclusion of such developed lands. Any such lands inadvertently left
inside critical habitat boundaries shown on the maps of this proposed
rule have been excluded by text in the proposed rule and are not
proposed for designation as critical habitat. Therefore, if the
critical habitat is finalized as proposed, a Federal action involving
these lands would not trigger section 7 consultation under the Act with
respect to critical habitat and the requirement of no adverse
modification unless the specific action would affect the PBFs in the
adjacent critical habitat. Additionally, it is important to note that
the best available GIS base layers used for the proposed designation do
not perfectly match the actual coastlines of the islands. For
consistency, accountability, and transparency reasons, we did not alter
the layers. We have attempted to vary the scale in our maps to minimize
discrepancies, although there remain some instances where a polygon
boundary does not perfectly align with an island/atoll coastline (e.g.,
the MHWL edge of a proposed critical habitat polygon appears inland or
within the water, to a small extent, from the island border). In these
instances, it is important to evaluate and use the maps in conjunction
with the textual descriptions to best understand the unit placement on
the coastline.
Proposed Critical Habitat Designation
We are proposing 101 units as critical habitat for the green
turtle's terrestrial (nesting and basking) areas, all of which were
occupied at the time of listing and totaling approximately 8,870 ac
(3,590 ha). All of these areas are occupied by the species, and we are
not proposing any unoccupied areas. Table 1, below, shows the proposed
units separated by DPS, including unit names, land ownership, and
approximate acreage. The land ownership values in many (but not all) of
the proposed critical habitat units within the three Pacific DPSs also
include a category called ``uncategorized lands.'' For the purposes of
this analysis and proposed critical habitat designation, this category
refers to lands where we were unable to determine local government or
private ownership.
The specific terrestrial areas we propose as critical habitat for
the green turtle are presented below, totaling 31 units and 2,233 ac
(904 ha) in the Central North Pacific DPS, 6 units and 242 ac (98 ha)
in the Central South Pacific DPS, 23 units and 304 ac (123 ha) in the
Central West Pacific DPS, 33 units and 5,974 ac (2,418 ha) in the North
Atlantic DPS, and 8 units and 117 ac (47 ha) in the South Atlantic DPS.
Brief descriptions of all units are presented, including the reasons
why they meet the definition of critical habitat for the green turtle.
All units are occupied by the species and contain one or more of the
physical and biological features essential to the conservation of the
species and that may require special management considerations or
protection. Also, many of the proposed units overlap in part or whole
with existing critical habitat designated for other federally listed
species, as specified below (table 2).
Most of the units contain highly dynamic barrier beaches and
intertidal seashore. This area has the potential to vary year-to-year.
In other words, the precise location of the PBFs in some locations may
shift over time somewhat because of the intrinsically dynamic nature of
shorelines and due to sea level rise.
Of note: we include diacritical marks to many location names,
particularly in the Pacific DPSs, although these marks only appear
within the preamble of this proposed rule due to Federal Register
printing format constraints. Therefore, diacritical marks are removed
from location names within the text and maps that appear in Proposed
Regulation Promulgation, below.
Table 1--Proposed Critical Habitat Land Ownership and Unit Size (Values Rounded to the Nearest Whole Number) for
the Green Turtle
[All units are occupied by the species.]
----------------------------------------------------------------------------------------------------------------
Approximate, Approximate,
Critical habitat unit no. and name Land Ownership by type \1\ acres hectares
----------------------------------------------------------------------------------------------------------------
Central North Pacific DPS--Northwestern Hawaiian Islands
----------------------------------------------------------------------------------------------------------------
HI-01, Kure Atoll............................. Federal......................... 0 0
State........................... 106 43
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 0 0
-------------------------------
Total........................ 106 43
----------------------------------------------------------------------------------------------------------------
HI-02, Midway Islands......................... Federal......................... 88 35
State........................... 0 0
Local Gov't..................... 0 0
Private/Other................... 0 0
[[Page 46389]]
Uncategorized................... 0 0
-------------------------------
Total........................ 88 35
----------------------------------------------------------------------------------------------------------------
HI-03, Pearl and Hermes Atoll................. Federal......................... 207 84
State........................... 0 0
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 0 0
-------------------------------
Total........................ 207 84
----------------------------------------------------------------------------------------------------------------
HI-04, Lisianski Island....................... Federal......................... 295 119
State........................... 0 0
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 0 0
-------------------------------
Total........................ 295 119
----------------------------------------------------------------------------------------------------------------
HI-05, Laysan Island.......................... Federal......................... 171 69
State........................... 0 0
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 0 0
-------------------------------
Total........................ 171 69
----------------------------------------------------------------------------------------------------------------
HI-06, French Frigate Shoals.................. Federal......................... 95 38
State........................... 0 0
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 0 0
-------------------------------
Total........................ 95 38
----------------------------------------------------------------------------------------------------------------
Central North Pacific DPS--Main Hawaiian Islands
----------------------------------------------------------------------------------------------------------------
HI-07, Halelea and Ko[revaps]olau Moku........ Federal......................... 2 1
State........................... <1 <1
Local Gov't..................... <1 <1
Private/Other................... 9 3
Uncategorized................... 59 24
-------------------------------
Total........................ 69 28
----------------------------------------------------------------------------------------------------------------
HI-08, N[amacr] Pali Coast and Federal......................... 0 0
M[amacr]n[amacr] Plains.
State........................... 228 92
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 26 11
-------------------------------
Total........................ 254 103
----------------------------------------------------------------------------------------------------------------
HI-09, Puna Moku on Kaua[revaps]i............. Federal......................... 0 0
State........................... 3 1
Local Gov't..................... 2 1
Private/Other................... 13 5
Uncategorized................... 14 6
-------------------------------
Total........................ 33 13
----------------------------------------------------------------------------------------------------------------
HI-10, Kona Moku on Kaua[revaps]i............. Federal......................... 0 0
State........................... 4 2
Local Gov't..................... 3 1
Private/Other................... 6 3
Uncategorized................... 1 <1
-------------------------------
Total........................ 14 6
----------------------------------------------------------------------------------------------------------------
[[Page 46390]]
HI-11, Northern Ko[revaps]olauloa Moku........ Federal......................... 24 10
State........................... 26 10
Local Gov't..................... <1 <1
Private/Other................... 30 12
Uncategorized................... 53 21
-------------------------------
Total........................ 132 54
----------------------------------------------------------------------------------------------------------------
HI-12, Waialua Moku........................... Federal......................... <1 <1
State........................... 7 3
Local Gov't..................... 5 2
Private/Other................... 29 12
Uncategorized................... 41 17
-------------------------------
Total........................ 82 33
----------------------------------------------------------------------------------------------------------------
HI-13, Wai[revaps]anae Moku................... Federal......................... <1 <1
State........................... 13 5
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... <1 <1
-------------------------------
Total........................ 13 5
----------------------------------------------------------------------------------------------------------------
HI-14, Ko[revaps]olaupoko Moku................ Federal......................... 0 0
State........................... 7 3
Local Gov't..................... 3 1
Private/Other................... <1 <1
Uncategorized................... 42 17
-------------------------------
Total........................ 53 22
----------------------------------------------------------------------------------------------------------------
HI-15, [revaps]Ewa Moku....................... Federal......................... 0 0
State........................... 0 0
Local Gov't..................... <1 <1
Private/Other................... 2 1
Uncategorized................... 7 3
-------------------------------
Total........................ 9 4
----------------------------------------------------------------------------------------------------------------
HI-16, Moloka[revaps]i Island................. Federal......................... 0 0
State........................... 15 6
Local Gov't..................... 0 0
Private/Other................... 104 42
Uncategorized................... 40 16
-------------------------------
Total........................ 160 65
----------------------------------------------------------------------------------------------------------------
HI-17, K[amacr][revaps]anapali Moku........... Federal......................... 0 0
State........................... <1 <1
Local Gov't..................... 0 0
Private/Other................... 10 4
Uncategorized................... 23 9
-------------------------------
Total........................ 34 14
----------------------------------------------------------------------------------------------------------------
HI-18, P[umacr][revaps]ali Komohana and Federal......................... 0 0
H[amacr]m[amacr]kuapoko Moku.
State........................... 17 7
Local Gov't..................... 6 2
Private/Other................... 30 12
Uncategorized................... 19 8
-------------------------------
Total........................ 73 29
----------------------------------------------------------------------------------------------------------------
HI-19, L[amacr]hain[amacr] Moku............... Federal......................... 0 0
State........................... <1 <1
Local Gov't..................... 3 1
Private/Other................... 7 3
Uncategorized................... 23 9
-------------------------------
[[Page 46391]]
Total........................ 32 13
----------------------------------------------------------------------------------------------------------------
HI-20, South P[umacr][revaps]ali Komohana and Federal......................... <1 <1
Kula Moku.
State........................... <1 <1
Local Gov't..................... 4 2
Private/Other................... <1 <1
Uncategorized................... 12 5
-------------------------------
Total........................ 17 7
----------------------------------------------------------------------------------------------------------------
HI-21, H[amacr]na Moku........................ Federal......................... 0 0
State........................... 0 0
Local Gov't..................... 0 0
Private/Other................... 2 1
Uncategorized................... 1 <1
-------------------------------
Total........................ 3 1
----------------------------------------------------------------------------------------------------------------
HI-22, Honua[revaps]ula Moku.................. Federal......................... 0 0
State........................... <1 <1
Local Gov't..................... 0 0
Private/Other................... <1 <1
Uncategorized................... 0 0
-------------------------------
Total........................ <1 <1
----------------------------------------------------------------------------------------------------------------
HI-23, L[amacr]na[revaps]i Island............. Federal......................... 0 0
State........................... 0 0
Local Gov't..................... 0 0
Private/Other................... 145 59
Uncategorized................... 17 7
-------------------------------
Total........................ 161 65
----------------------------------------------------------------------------------------------------------------
HI-24, Kaho[revaps]olawe Island............... Federal......................... 0 0
State........................... 3 1
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 0 0
-------------------------------
Total........................ 3 1
----------------------------------------------------------------------------------------------------------------
HI-25, South Kohala........................... Federal......................... 0 0
State........................... 18 7
Local Gov't..................... 0 0
Private/Other................... 9 3
Uncategorized................... 7 3
-------------------------------
Total........................ 33 13
----------------------------------------------------------------------------------------------------------------
HI-26, Kona Moku on Hawai[revaps]i Island..... Federal......................... 12 5
State........................... 15 6
Local Gov't..................... 1 <1
Private/Other................... 10 4
Uncategorized................... 13 5
-------------------------------
Total........................ 50 20
----------------------------------------------------------------------------------------------------------------
HI-27, Hilo Moku.............................. Federal......................... 0 0
State........................... 1 <1
Local Gov't..................... <1 <1
Private/Other................... 0 0
Uncategorized................... 1 <1
-----------------------------------------------------------------
Total........................ 2 1
----------------------------------------------------------------------------------------------------------------
HI-28, Kea[revaps]au.......................... Federal......................... 0 0
State........................... 0 0
Local Gov't..................... 0 0
Private/Other................... <1 <1
[[Page 46392]]
Uncategorized................... <1 <1
-------------------------------
Total........................ 1 <1
----------------------------------------------------------------------------------------------------------------
HI-29, Pohoiki Beach.......................... Federal......................... 0 0
State........................... <1 <1
Local Gov't..................... 4 1
Private/Other................... <1 <1
Uncategorized................... 6 2
-------------------------------
Total........................ 9 4
----------------------------------------------------------------------------------------------------------------
HI-30, Keauhou................................ Federal......................... 9 4
State........................... 0 0
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 7 3
-------------------------------
Total........................ 16 7
----------------------------------------------------------------------------------------------------------------
HI-31, Ka[revaps][umacr] Moku................. Federal......................... 5 2
State........................... 3 1
Local Gov't..................... 4 2
Private/Other................... 4 1
Uncategorized................... 2 1
-------------------------------
Total........................ 17 7
----------------------------------------------------------------------------------------------------------------
** Central North Pacific DPS Totals....... Federal......................... 907 367
State........................... 466 189
Local Gov't..................... 35 14
Private/Other................... 411 166
Uncategorized................... 415 168
Total........................ 2,233 904
----------------------------------------------------------------------------------------------------------------
Central South Pacific DPS--American Samoa
----------------------------------------------------------------------------------------------------------------
AS-01, Palmyra Atoll.......................... Federal......................... 7 3
Territory....................... 0 0
Local Gov't..................... 0 0
Private/Other................... 15 6
Uncategorized................... 0 0
-------------------------------
Total........................ 22 9
----------------------------------------------------------------------------------------------------------------
AS-02, Swains Island.......................... Federal......................... 0 0
Territory....................... 0 0
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 125 50
-------------------------------
Total........................ 125 50
----------------------------------------------------------------------------------------------------------------
AS-03, Ofu and Olosega Islands................ Federal......................... 0 0
Territory....................... 0 0
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 49 20
-------------------------------
Total........................ 49 20
----------------------------------------------------------------------------------------------------------------
AS-04, Ta[revaps]u Island..................... Federal......................... 0 0
Territory....................... 0 0
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 34 14
-------------------------------
Total........................ 34 14
----------------------------------------------------------------------------------------------------------------
AS-05,Aunu[revaps]u Island.................... Federal......................... 0 0
[[Page 46393]]
Territory....................... 0 0
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 4 1
-------------------------------
Total........................ 4 1
----------------------------------------------------------------------------------------------------------------
AS-06, Rose Atoll............................. Federal......................... 10 4
Territory....................... 0 0
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 0 0
-------------------------------
Total........................ 10 4
----------------------------------------------------------------------------------------------------------------
** Central South Pacific DPS Totals....... Federal......................... 17 7
Territory....................... 0 0
Local Gov't..................... 0 0
Private/Other................... 15 6
Uncategorized................... 211 85
-------------------------------
Total........................ 242 98
----------------------------------------------------------------------------------------------------------------
Central West Uacific DPS--Guam
----------------------------------------------------------------------------------------------------------------
GU-01, Ritidian Point and Uruno Beach......... Federal......................... 18 7
Territory....................... <1 <1
Local Gov't..................... 0 0
Private/Other................... 13 5
Uncategorized................... 6 2
-------------------------------
Total........................ 37 15
----------------------------------------------------------------------------------------------------------------
GU-02, Jinapsan Beach......................... Federal......................... 4 1
Territory....................... 0 0
Local Gov't..................... 0 0
Private/Other................... 3 1
Uncategorized................... 8 3
-------------------------------
Total........................ 14 6
----------------------------------------------------------------------------------------------------------------
GU-03, Tanguisson............................. Federal......................... 0 0
Territory....................... 6 2
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 6 2
-------------------------------
Total........................ 12 5
----------------------------------------------------------------------------------------------------------------
GU-04, Tumon Bay.............................. Federal......................... 0 0
Territory....................... 0 0
Local Gov't..................... 0 0
Private/Other................... 10 4
Uncategorized................... 4 1
-----------------------------------------------------------------
Total........................ 14 6
----------------------------------------------------------------------------------------------------------------
GU-05, Hag[aring]t[ntilde]a Bay............... Federal......................... 0 0
Territory....................... 0 0
Local Gov't..................... 0 0
Private/Other................... 1 <1
Uncategorized................... 6 3
-----------------------------------------------------------------
Total........................ 7 3
----------------------------------------------------------------------------------------------------------------
GU-06, Cabras Island.......................... Federal......................... 0 0
Territory....................... 0 0
Local Gov't..................... 0 0
Private/Other................... <1 <1
[[Page 46394]]
Uncategorized................... 8 3
-------------------------------
Total........................ 8 3
----------------------------------------------------------------------------------------------------------------
GU-07, Agat Bay............................... Federal......................... <1 <1
Territory....................... 0 0
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 1 <1
-------------------------------
Total........................ 1 <1
----------------------------------------------------------------------------------------------------------------
GU-08, Pago (a.k.a. P[aring]gu) Point to Ylig Federal......................... 0 0
Bay.
Territory....................... 0 0
Local Gov't..................... 0 0
Private/Other................... 2 1
Uncategorized................... <1 <1
-------------------------------
Total........................ 2 1
----------------------------------------------------------------------------------------------------------------
GU-09, Talo'fo'fo Village..................... Federal......................... 0 0
Territory....................... 0 0
Local Gov't..................... 0 0
Private/Other................... 2 1
Uncategorized................... 3 1
-------------------------------
Total........................ 4 2
----------------------------------------------------------------------------------------------------------------
GU-10, Hum[aring]tak Village.................. Federal......................... 0 0
Territory....................... 0 0
Local Gov't..................... 0 0
Private/Other................... 1 <1
Uncategorized................... 6 3
-------------------------------
Total........................ 7 3
----------------------------------------------------------------------------------------------------------------
GU-11, Nomna Bay.............................. Federal......................... 0 0
Territory....................... 0 0
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 2 1
-------------------------------
Total........................ 2 1
----------------------------------------------------------------------------------------------------------------
GU-12, Inarajan Bay........................... Federal......................... 0 0
Territory....................... 0 0
Local Gov't..................... 0 0
Private/Other................... 1 <1
Uncategorized................... 3 1
-------------------------------
Total........................ 4 1
----------------------------------------------------------------------------------------------------------------
GU-13, Agfayan Point to Aga Point............. Federal......................... 0 0
Territory....................... 0 0
Local Gov't..................... 0 0
Private/Other................... 2 1
Uncategorized................... 4 1
-------------------------------
Total........................ 5 2
----------------------------------------------------------------------------------------------------------------
GU-14, Cocos Island........................... Federal......................... 0 0
Territory....................... 0 0
Local Gov't..................... 0 0
Private/Other................... 1 <1
Uncategorized................... 7 3
-------------------------------
Total........................ 8 3
----------------------------------------------------------------------------------------------------------------
[[Page 46395]]
Central West Pacific DPS--Northern Mariana Islands
----------------------------------------------------------------------------------------------------------------
MP-01, Agrihan Island......................... Federal......................... 0 0
Commonwealth.................... 0 0
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 44 18
-------------------------------
Total........................ 44 18
----------------------------------------------------------------------------------------------------------------
MP-02, Pagan Island........................... Federal......................... 0 0
Commonwealth.................... 0 0
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 12 5
-------------------------------
Total........................ 12 5
----------------------------------------------------------------------------------------------------------------
MP-03, Wing Beach and Bird Island............. Federal......................... 0 0
Commonwealth.................... 4 2
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 3 1
-------------------------------
Total........................ 7 3
----------------------------------------------------------------------------------------------------------------
MP-04, Managaha Island and Unai Makaka........ Federal......................... 0 0
Commonwealth.................... 5 2
Local Gov't..................... 0 0
Private/Other................... <1 <1
Uncategorized................... 16 6
-------------------------------
Total........................ 21 9
----------------------------------------------------------------------------------------------------------------
MP-05, Eastern Saipan......................... Federal......................... 0 0
Commonwealth.................... 9 4
Local Gov't..................... 0 0
Private/Other................... 1 <1
Uncategorized................... 8 3
-------------------------------
Total........................ 18 7
----------------------------------------------------------------------------------------------------------------
MP-06, Southern Saipan........................ Federal......................... 0 0
Commonwealth.................... 1 <1
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 7 3
-------------------------------
Total........................ 8 3
----------------------------------------------------------------------------------------------------------------
MP-07, Western Tinian......................... Federal......................... 0 0
Commonwealth.................... 3 1
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 4 1
-------------------------------
Total........................ 6 3
----------------------------------------------------------------------------------------------------------------
MP-08, Northern Rota.......................... Federal......................... 0 0
Commonwealth.................... 44 18
Local Gov't..................... 0 0
Private/Other................... 2 1
Uncategorized................... 9 4
-------------------------------
Total........................ 54 22
----------------------------------------------------------------------------------------------------------------
MP-09, Southern Rota.......................... Federal......................... 0 0
Commonwealth.................... 8 3
Local Gov't..................... 0 0
Private/Other................... <1 <1
[[Page 46396]]
Uncategorized................... 1 <1
-------------------------------
Total........................ 9 4
----------------------------------------------------------------------------------------------------------------
** Central West Pacific DPS, Totals....... Federal......................... 22 9
Territory/Commonwealth.......... 79 32
Local Gov't..................... 0 0
Private/Other................... 37 15
Uncategorized................... 166 67
-------------------------------
Total........................ 304 123
----------------------------------------------------------------------------------------------------------------
North Atlantic DPS--Florida
----------------------------------------------------------------------------------------------------------------
FL-01, Guana Tolomato Matanzas National Federal......................... 0 0
Estuarine Research Reserve--Guana River Site.
State........................... 112 45
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 0 0
-------------------------------
Total........................ 112 45
----------------------------------------------------------------------------------------------------------------
FL-02, Washington Oaks Gardens State Park to Federal......................... 0 0
North Peninsula State Park.
State........................... 77 31
Local Gov't..................... 61 25
Private/Other................... 169 68
Uncategorized................... 0 0
-------------------------------
Total........................ 307 124
----------------------------------------------------------------------------------------------------------------
FL-03, Canaveral National Seashore to Merritt Federal......................... 558 226
Island National Wildlife Refuge.
State........................... 0 0
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 0 0
-------------------------------
Total........................ 558 226
----------------------------------------------------------------------------------------------------------------
FL-04, Satellite Beach to Indian River Shores. Federal......................... 52 21
State........................... 72 29
Local Gov't..................... 120 48
Private/Other................... 400 163
Uncategorized................... 0 0
-------------------------------
Total........................ 644 261
----------------------------------------------------------------------------------------------------------------
FL-05, Hutchinson Island...................... Federal......................... 0 0
State........................... 0 0
Local Gov't..................... 119 48
Private/Other................... 217 88
Uncategorized................... 0 0
-------------------------------
Total........................ 336 136
----------------------------------------------------------------------------------------------------------------
FL-06, St. Lucie Inlet to Jupiter Inlet....... Federal......................... 69 28
State........................... 49 20
Local Gov't..................... 11 5
Private/Other................... 195 78
Uncategorized................... 0 0
-------------------------------
Total........................ 324 131
----------------------------------------------------------------------------------------------------------------
FL-07, Jupiter Inlet to Lake Worth Inlet...... Federal......................... 0 0
State........................... 25 10
Local Gov't..................... 85 35
Private/Other................... 104 42
[[Page 46397]]
Uncategorized................... 0 0
-------------------------------
Total........................ 214 87
----------------------------------------------------------------------------------------------------------------
FL-08, Palm Beach to Boynton Inlet............ Federal......................... 0 0
State........................... 0 0
Local Gov't..................... 1 <1
Private/Other................... 41 17
Uncategorized................... 0 0
-------------------------------
Total........................ 42 17
----------------------------------------------------------------------------------------------------------------
FL-09, Boynton Inlet to Boca Raton Inlet...... Federal......................... 0 0
State........................... 0 0
Local Gov't..................... 66 27
Private/Other................... 148 60
Uncategorized................... 0 0
-------------------------------
Total........................ 214 87
----------------------------------------------------------------------------------------------------------------
FL-10, Boca Raton Inlet to Hillsboro Inlet.... Federal......................... 1 <1
State........................... 0 0
Local Gov't..................... 16 7
Private/Other................... 65 26
Uncategorized................... 0 0
-------------------------------
Total........................ 82 34
----------------------------------------------------------------------------------------------------------------
FL-11, Sawyer Key............................. Federal......................... 6 3
State........................... 0 0
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 0 0
-------------------------------
Total........................ 6 3
----------------------------------------------------------------------------------------------------------------
FL-12, Boca Grande and Marquesas Keys......... Federal......................... 28 12
State........................... 0 0
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 0 0
-------------------------------
Total........................ 28 12
----------------------------------------------------------------------------------------------------------------
FL-13, Dry Tortugas........................... Federal......................... 21 8
State........................... 0 0
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 0 0
-------------------------------
Total........................ 21 8
----------------------------------------------------------------------------------------------------------------
FL-14, Sanibel Island West.................... Federal......................... 0 0
State........................... 0 0
Local Gov't..................... 76 31
Private/Other................... 113 45
Uncategorized................... 0 0
-----------------------------------------------------------------
Total........................ 189 76
----------------------------------------------------------------------------------------------------------------
FL-15, Gasparilla Island...................... Federal......................... 5 2
State........................... 25 10
Local Gov't..................... 0 0
Private/Other................... 125 51
Uncategorized................... 0 0
-------------------------------
Total........................ 155 63
----------------------------------------------------------------------------------------------------------------
FL-16, Don Pedro and Little Gasparilla Islands Federal......................... 0 0
State........................... 20 8
[[Page 46398]]
Local Gov't..................... 0 0
Private/Other................... 166 67
Uncategorized................... 0 0
-------------------------------
Total........................ 186 75
----------------------------------------------------------------------------------------------------------------
FL-17, Manasota Key........................... Federal......................... 0 0
State........................... 25 10
Local Gov't..................... 46 19
Private/Other................... 93 37
Uncategorized................... 0 0
-------------------------------
Total........................ 164 66
----------------------------------------------------------------------------------------------------------------
FL-18, Casey and Siesta Keys.................. Federal......................... 0 0
State........................... 0 0
Local Gov't..................... 30 12
Private/Other................... 84 34
Uncategorized................... 0 0
-------------------------------
Total........................ 114 46
----------------------------------------------------------------------------------------------------------------
FL-19, Cape St. George and St. George Island.. Federal......................... 0 0
State........................... 545 221
Local Gov't..................... 0 0
Private/Other................... 270 109
Uncategorized................... 0 0
-------------------------------
Total........................ 815 330
----------------------------------------------------------------------------------------------------------------
FL-20, St. Joseph Peninsula................... Federal......................... 0 0
State........................... 466 189
Local Gov't..................... 2 1
Private/Other................... 154 62
Uncategorized................... 0 0
-------------------------------
Total........................ 622 252
----------------------------------------------------------------------------------------------------------------
FL-21, Inlet Beach............................ Federal......................... 0 0
State........................... 0 0
Local Gov't..................... 7 3
Private/Other................... 86 34
Uncategorized................... 0 0
-------------------------------
Total........................ 93 37
----------------------------------------------------------------------------------------------------------------
FL-22, Topsail Hill Preserve State Park....... Federal......................... 0 0
State........................... 165 67
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 0 0
-------------------------------
Total........................ 165 67
----------------------------------------------------------------------------------------------------------------
FL-23, Gulf Islands National Seashore......... Federal......................... 316 128
State........................... 17 7
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 0 0
-------------------------------
Total........................ 334 135
----------------------------------------------------------------------------------------------------------------
North Atlantic DPS--Puerto Rico
----------------------------------------------------------------------------------------------------------------
PR-01, Mona Island............................ Federal......................... 0 0
Commonwealth.................... 66 27
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 0 0
-------------------------------
[[Page 46399]]
Total........................ 66 27
----------------------------------------------------------------------------------------------------------------
PR-02, Guayama................................ Federal......................... 0 0
Commonwealth.................... 23 9
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 0 0
-------------------------------
Total........................ 23 9
----------------------------------------------------------------------------------------------------------------
PR-03, Maunabo................................ Federal......................... 0 0
Commonwealth.................... 24 10
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 0 0
-------------------------------
Total........................ 24 10
----------------------------------------------------------------------------------------------------------------
VPR-01, Campa[ntilde]a........................ Federal......................... 11 4
Commonwealth.................... 0 0
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 0 0
-------------------------------
Total........................ 11 4
----------------------------------------------------------------------------------------------------------------
VPR-02, Puerto Diablo......................... Federal......................... 15 6
Commonwealth.................... 0 0
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 0 0
-----------------------------------------------------------------
Total........................ 15 6
----------------------------------------------------------------------------------------------------------------
VPR-03, Vieques East.......................... Federal......................... 17 7
Commonwealth.................... 0 0
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 0 0
-------------------------------
Total........................ 17 7
----------------------------------------------------------------------------------------------------------------
VPR-04, Fanduca to Conejo..................... Federal......................... 23 9
Commonwealth.................... 0 0
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 0 0
-------------------------------
Total........................ 23 9
----------------------------------------------------------------------------------------------------------------
VPR-05, La Chiva.............................. Federal......................... 10 4
Commonwealth.................... 0 0
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 0 0
-------------------------------
Total........................ 10 4
----------------------------------------------------------------------------------------------------------------
VPR-06, Sun Bay............................... Federal......................... 0 0
Commonwealth.................... 13 5
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 0 0
-------------------------------
Total........................ 13 5
----------------------------------------------------------------------------------------------------------------
VPR-07, Vieques Southwest..................... Federal......................... 44 18
Commonwealth.................... 4 1
Local Gov't..................... 0 0
Private/Other................... 0 0
[[Page 46400]]
Uncategorized................... 0 0
-------------------------------
Total........................ 48 19
----------------------------------------------------------------------------------------------------------------
** North Atlantic DPS Totals.............. Federal......................... 1,177 475
State/Commonwealth.............. 1,727 699
Local Gov't..................... 640 261
Private/Other................... 2,430 981
Uncategorized 0............................... 0
-------------------------------
Total........................ 5,974 2,418
----------------------------------------------------------------------------------------------------------------
South Atlantic DPS--Vieques, U.S. Virgin Islands.
----------------------------------------------------------------------------------------------------------------
USVI-01, Sandy Point National Wildlife Refuge. Federal......................... 35 14
Territory....................... 2 1
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 0 0
-------------------------------
Total........................ 37 15
----------------------------------------------------------------------------------------------------------------
USVI-02, Long Point Bay....................... Federal......................... 0 0
Territory....................... 9 4
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 0 0
-------------------------------
Total........................ 9 4
----------------------------------------------------------------------------------------------------------------
USVI-03, St. Croix South...................... Federal......................... 0 0
Territory....................... 20 8
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 0 0
-------------------------------
Total........................ 20 8
----------------------------------------------------------------------------------------------------------------
USVI-04, East End............................. Federal......................... 0 0
Territory....................... 16 6
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 0 0
-------------------------------
Total........................ 16 6
----------------------------------------------------------------------------------------------------------------
USVI-05, Chenay to Coakley.................... Federal......................... 0 0
Territory....................... 15 6
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 0 0
-------------------------------
Total........................ 15 6
----------------------------------------------------------------------------------------------------------------
USVI-06, Buccaneer............................ Federal......................... 0 0
Territory....................... 6 2
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 0 0
-------------------------------
Total........................ 6 2
----------------------------------------------------------------------------------------------------------------
USVI-07, Judith's Fancy....................... Federal......................... 0 0
Territory....................... 3 1
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 0 0
-------------------------------
Total........................ 3 1
----------------------------------------------------------------------------------------------------------------
[[Page 46401]]
USVI-08, Buck Island Reef National Monument... Federal......................... 12 5
Territory....................... 0 0
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 0 0
-------------------------------
Total........................ 12 5
----------------------------------------------------------------------------------------------------------------
** South Atlantic DPS Totals.............. Federal......................... 47 19
Territory....................... 71 28
Local Gov't..................... 0 0
Private/Other................... 0 0
Uncategorized................... 0 0
-------------------------------
Total........................ 117 47
----------------------------------------------------------------------------------------------------------------
Note: Total numbers for individual units and totals for each DPS may not sum due to rounding (to the nearest
whole number).
\1\ Local government ownership may include counties, cities, or municipalities. Private/Other ownership includes
nonprofit preserve/reserve areas. Uncategorized ownership type occurs only within some units in the three
Pacific DPSs.
Table 2--Co-occurring Critical Habitat Designations That Overlap Proposed Critical Habitat for Green Turtles
--------------------------------------------------------------------------------------------------------------------------------------------------------
Area of overlap with designated critical habitat \1\ in acres (ac) (hectares (ha))
[# of proposed green turtle units overlapping]
Species ------------------------------------------------------------------------------------
Central North Central South Central West North Atlantic South Atlantic
Pacific DPS Pacific DPS Pacific DPS DPS DPS
--------------------------------------------------------------------------------------------------------------------------------------------------------
loggerhead sea turtle (Caretta caretta)............................ N/A N/A N/A 4,649 ac (1,881 N/A
ha) [18]
hawksbill sea turtle (Eretmochelys imbricata)...................... N/A N/A N/A 66 ac (27 ha) N/A
[1]
leatherback sea turtle (Dermochelys coriacea)...................... N/A N/A N/A N/A 27 ac (11 ha)
[…truncated; see source link]Indexed from Federal Register on July 19, 2023.
This is legal information, not legal advice. Laws vary by jurisdiction and change frequently. Always verify current law with official sources and consult a licensed attorney in your jurisdiction for advice on your specific situation.