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Leatherback Sea Turtle (Dermochelys Coriacea) Under the Endangered Species Act

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Leatherback Sea Turtle (Dermochelys Coriacea) Under the Endangered Species Act BEFORE THE SECRETARY OF COMMERCE PETITION TO REVISE THE CRITICAL HABITAT DESIGNATION FOR THE LEATHERBACK SEA TURTLE (DERMOCHELYS CORIACEA) UNDER THE ENDANGERED SPECIES ACT Photo © Thomas Literal CENTER FOR BIOLOGICAL DIVERSITY OCEANA TURTLE ISLAND RESTORATION NETWORK PETITIONERS SEPTEMBER 26, 2007 NOTICE OF PETITION Carlos M. Gutierrez Dirk Kempthorne Secretary of Commerce Secretary of the Interior U.S. Department of Commerce 1849 C Street, NW 1401 Constitution Avenue, N.W., Washington, D.C. 20240 Room 5516 Phone: (202) 208-3100 Washington, D.C. 20230 Fax: (202) 208-6956 Email: [email protected] Phone: (202) 482-2112 Mr. H. Dale Hall, Director Fax: (202) 482-2741 United States Fish and Wildlife Service 1849 C Street, NW, Room 3256 Dr. William Hogarth MailStop 3238 MIB Assistant Administrator for Fisheries Washington, DC 20240-0001 National Oceanographic and Phone: (202) 208-4717 Atmospheric Administration Fax: (202) 208-6965 1315 East-West Highway Silver Springs, MD 20910 E-mail: [email protected] Phone: (301) 713-2239 Fax: (301) 713-1940 Petitioners Center for Biological Diversity Oceana Turtle Island Restoration Network 1095 Market St., Suite 511 4189 S.E. Division St., 40 Montezuma Avenue San Francisco, CA 94103 North Suite Forest Knolls, CA 94933 Tel: (415) 436-9682 Portland, OR 97202 Tel: (415) 488-0370 Tel: (503) 234-4552 The Center for Biological Diversity is a non-profit, public interest environmental organization dedicated to the protection of native species and their habitats through science, policy, and environmental law. The Center has over 35,000 members throughout the United States. The Center and its members are concerned with the conservation of endangered species, including the leatherback sea turtle, and the effective implementation of the Endangered Species Act. Oceana campaigns to protect and restore the world’s oceans. Our teams of marine scientists, economists, lawyers and advocates win specific and concrete policy changes to reduce pollution and to prevent the irreversible collapse of fish populations, marine mammals and other sea life such as the leatherback. Global in scope and dedicated to conservation, Oceana has more than 300,000 members and e-activists in over 150 countries. Turtle Island Restoration Network is a nonprofit, public interest environmental organization with approximately 10,000 members throughout the United States and the world, i each of whom shares a commitment to the study, protection, enhancement, conservation, and preservation of the world’s marine and terrestrial ecosystems, including protection of sea turtles such as the leatherback. Action Requested Pursuant to Section 4(b)(3)(D) of the Endangered Species Act (“ESA”), 16 U.S.C. § 1533(b)(3)(D), Section 553(3) of the Administrative Procedures Act, 5 U.S.C. § 553(e), and 50 C.F.R. § 424.14(a), the Center for Biological Diversity, Oceana and Turtle Island Restoration Network (collectively “Petitioners”) hereby petition the Secretary of Commerce, through the National Marine Fisheries Service (“NMFS”) to revise the critical habitat designation for the leatherback sea turtle (Dermochelys coriacea) as codified at 50 C.F.R. § 226.207 to include marine waters along the California and Oregon coasts that constitute essential foraging areas for this critically imperiled species. Jurisdiction under the ESA over sea turtles is split between NMFS and the Secretary of the Interior, through the United States Fish and Wildlife Service (“FWS”) pursuant to a Memorandum of Agreement between the agencies. FWS has jurisdiction over sea turtles on land (i.e. nesting beaches) while NMFS has jurisdiction over sea turtles at sea. Because leatherback sea turtles in the Pacific are not known to nest anywhere under the jurisdiction of the United States, Petitioners believe that leatherback sea turtles in the Pacific are managed pursuant to the ESA solely by NMFS. As such, Petitioners believe that NMFS is the proper agency to process this petition. See e.g., 63 Fed. Reg. 46693, September 2, 1998 (Final critical habitat rule for green and hawksbill sea turtles promulgated by NMFS). Nevertheless, Petitioners also submit this petition to the Secretary of the Interior and the FWS in the event that the agencies determine that jurisdiction over this petition is shared between NMFS and FWS. This petition sets in motion a specific process, placing definite response requirements on NMFS. Specifically, NMFS must issue an initial finding as to whether the petition “presents substantial scientific or commercial information indicating that the revision may be warranted.” 16 U.S.C. § 1533(b)(3)(D)(i). NMFS must make this initial finding “[t]o the maximum extent practicable, within 90 days after receiving the petition.” Id. Petitioners need not demonstrate that the proposed revision action is warranted, rather, Petitioners must only present information demonstrating that such action may be warranted. While Petitioners believe that the best available science demonstrates that revising the existing critical habitat designation for leatherback sea turtles to include Pacific Ocean waters is in fact warranted, there can be no reasonable dispute that the available information, including NMFS’s own documents, indicates that such revision may be warranted. As such, NMFS must promptly make a positive initial finding on the petition and commence preparation or a proposed rulemaking to revise critical habitat for the leatherback sea turtle. As described in this petition, the areas of the Pacific Ocean we propose for critical habitat designation meet all the criteria for such designation as defined at 6 U.S.C. § 1532(5) and 50 C.F.R. §§ 424.02 & 424.12. However, in the event that NMFS determines that some portions of the requested critical habitat revision do not meet the criteria for such designation, we, in the alternative, request that NMFS analyze whether some subset of this area should be designated as critical habitat. ii TABLE OF CONTENTS Notice of Petition.............................................................................................................................i Table of Contents..........................................................................................................................iv Executive Summary.......................................................................................................................1 INTRODUCTION.....................................................................................................................…2 PART 1. NATURAL HISTORY AND STATUS OF THE PACIFIC LEATHERBACK SEA TURTLE I. Natural History of the Pacific Leatherback Sea Turtle ....................................................... 2 A. Taxonomy and Description of the Pacific Leatherback Sea Turtle ….………...…….2 B. Abundance and Population Trends …………………………………………….……….3 C. Distribution and Migration ………………………………………………………….......5 D. Feeding and Prey Selection ………..………………………………………………...…..6 E. Reproduction …………………………..………………………………………..………..7 II. The Importance of California and Oregon Waters for the Leatherback…...….................9 III. Threats to the Pacific Leatherback Sea Turtle ……….......................................................9 A. Entanglement in Fishing Gear …………………………………….………………...….9 B. Harvest of Adults and Eggs ………………………………………..……………….......13 C. Destruction and/or Modification of Habitat …………………………….…………….13 1. Coastal Development ………………………………………………………………..14 2. Erosion ……………………………………………………………………………….14 D. Nest Predation …….…………………………………………………………………….14 E. Entanglement in and Ingestion of Marine Debris …………………………........…….15 F. Global Warming………………………………………………………………………...15 PART 2. CRITICAL HABITAT FOR THE PACIFIC LEATHERBACK SEA TURTLE I. The Importance of Critical Habitat under the Endangered Species Act……….22 II. Existing Critical Habitat for the Leatherback Sea Turtle……………………….24 III. The Leatherback Recovery Plan…………………………………………………..25 IV. The Pacific Leatherback Conservation Area……………………………………..26 V. Requested Revision of Critical Habitat……………………………………………27 A. Proposed Regulatory Text……………………………………………………………...29 B. The Proposed Area Contains Physical and Biological Features Essential to the Conservation of the Species……………………………………………………………………29 C. Primary Constituent Elements………………………………………………………...32 D. The Proposed Area Requires Special Management Considerations………………..32 D. Critical Habitat Designation is both Prudent and Determinable……………………34 CONCLUSION…………………………………………………………………………………35 iv EXECUTIVE SUMMARY The waters off the coasts of California and Oregon comprise one of the most important foraging areas yet identified for the critically endangered leatherback sea turtle. Each year, from mid-summer through the fall, leatherback sea turtles, having completed a journey of thousands of miles from their nesting beaches in Indonesia, arrive off the West Coast of the U.S. to feed on seasonably abundant jellyfish in the California Current ecosystem. These rich marine waters meet the criteria for designation as critical habitat under the Endangered Species Act (“ESA”) and must be protected as such. The leatherback sea turtle in the Pacific Ocean has declined by upwards of 90% over the past three decades, primarily as a result of drowning in industrial longline and gillnet fisheries targeting swordfish, sharks and tunas. Such fishing is currently largely banned in the waters off the California and Oregon coasts during the summer and fall when leatherbacks are present, making these waters a rare refuge for
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