06-7416. Injurious Wildlife Species; Silver Carp (Hypophthalmichthys molitrix) and Largescale Silver Carp (Hypophthalmichthys harmandi)  

  • [Federal Register Volume 71, Number 171 (Tuesday, September 5, 2006)]
    [Proposed Rules]
    [Pages 52305-52316]
    From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
    [FR Doc No: 06-7416]
    
    
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    DEPARTMENT OF THE INTERIOR
    
    Fish and Wildlife Service
    
    50 CFR Part 16
    
    RIN 1018-AT29
    
    
    Injurious Wildlife Species; Silver Carp (Hypophthalmichthys 
    molitrix) and Largescale Silver Carp (Hypophthalmichthys harmandi)
    
    AGENCY: Fish and Wildlife Service, Interior.
    
    ACTION: Proposed rule; notice of availability of environmental 
    documents.
    
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    SUMMARY: The U.S. Fish and Wildlife Service proposes to add all forms 
    (diploid and triploid) of live silver carp (Hypophthalmichthys 
    molitrix), gametes, eggs, and hybrids; and all forms (diploid and 
    triploid) of live largescale silver carp (Hypophthalmichthys harmandi), 
    gametes, eggs, and hybrids to the list of injurious fish, mollusks, and 
    crustaceans under the Lacey Act. This listing would have the effect of 
    prohibiting the importation and interstate transportation of any live 
    animal, gamete, viable egg, or hybrid of the silver carp and largescale 
    silver carp, without a permit in limited circumstances. The best 
    available information indicates that this action is necessary to 
    protect the interests of human beings, and wildlife and wildlife 
    resources, from the purposeful or accidental introduction and 
    subsequent establishment of silver carp and largescale silver carp 
    populations in ecosystems of the United States.
    
    DATES: Comments must be submitted on or before November 6, 2006.
    
    ADDRESSES: You may submit comments, identified by RIN number 1018-AT29, 
    by any of the following methods:
         E-mail: silvercarp@fws.gov. Include ``RIN number 1018-
    AT29'' in the subject line of the message. See the Public Comments 
    Solicited section below for file format and other information about 
    electronic filing.
         Fax: (703) 358-1800.
         Mail/Hand Delivery/Courier: Chief, Branch of Invasive 
    Species, U.S. Fish and Wildlife Service, 4401 North Fairfax Drive, 
    Suite 322, Arlington, VA 22203.
         Federal eRulemaking Portal: http://www.regulations.gov. 
    Follow the instructions for submitting comments.
        Instructions: All submissions received must include the agency name 
    and Regulatory Information Number (RIN) for this rulemaking. For 
    detailed instructions on submitting comments and additional information 
    on the rulemaking process, see the ``Public Participation'' heading of 
    the SUPPLEMENTARY INFORMATION section of this document.
    
    FOR FURTHER INFORMATION CONTACT: Erin Williams, Branch of Invasive 
    Species, at erin--williams@fws.gov, or (703) 358-2034.
    
    SUPPLEMENTARY INFORMATION:
    
    Background
    
        In October 2002, the U.S. Fish and Wildlife Service (Service) 
    received a petition signed by 25 members of Congress representing the 
    Great Lakes region to add bighead, silver, and black carp to the list 
    of injurious wildlife under the Lacey Act (18 U.S.C. 42). A follow-up 
    letter to the original petition had seven additional Legislator 
    signatures that support the petition. The Service published a Federal 
    Register notice of inquiry on silver carp (68 FR 43482-43483, July 23, 
    2003) and provided a 60-day public comment period. We received 31 
    comments in total, but 12 of these did not address the issues raised in 
    the notice of inquiry. We considered the information provided in the 19 
    relevant comments. Most of the comments supported the addition of 
    silver carp to the list of injurious wildlife. One commenter noted that 
    silver carp have no commercial value, but was concerned that listing 
    would hinder control and management. One commenter asked us to delay 
    listing until a risk assessment could be completed. Biological synopses 
    and risk assessments were compiled for silver and largescale silver 
    carp.
        Under the terms of the injurious wildlife provisions of the Lacey 
    Act, the Secretary of the Interior is authorized to prohibit the 
    importation and interstate transportation of species designated by the 
    Secretary as injurious. Injurious wildlife are defined as those species 
    and offspring and eggs that are injurious to wildlife and wildlife 
    resources, to human beings, and to the interests of forestry, 
    horticulture, or agriculture of the United States. Wild mammals, wild 
    birds, fish, mollusks, crustaceans, amphibians, and reptiles are the 
    only organisms that can be added to the injurious wildlife list.
        Species listed as injurious (including their gametes or eggs) may 
    not be imported into the United States or transported between States, 
    the District of Columbia, the Commonwealth of Puerto Rico, or any 
    territory or possession of the United States by any means without a 
    permit issued by the Service. Permits may be granted for the 
    importation or transportation of
    
    [[Page 52306]]
    
    injurious wildlife and their offspring or eggs for bona fide 
    scientific, medical, educational, or zoological purposes. A listing 
    would not prohibit intrastate transport or possession of species within 
    States, where not prohibited by the State. Any regulation pertaining to 
    the use of species within States would continue to be the 
    responsibility of each State.
    
    Public Participation
    
        Our practice is to make comments, including names and home 
    addresses of respondents, available for public review during regular 
    business hours. Individual respondents may request that we withhold 
    their home address from the rulemaking record, which we will honor to 
    the extent allowable by law. In some circumstances, we would withhold 
    from the rulemaking record a respondent's identity, as allowable by 
    law. If you wish us to withhold your name and/or address, you must 
    state this prominently at the beginning of your comment. However, we 
    will not consider anonymous comments. We will make all submissions from 
    organizations or businesses and from individuals identifying themselves 
    as representatives or officials of organizations or businesses 
    available for public inspection in their entirety.
        This proposed rule solicits economic, biological, or other 
    information on adding all forms of live silver and largescale silver 
    carp, and hybrids, to the list of injurious wildlife. The data will be 
    used to determine if these species are a threat, or potential threat, 
    to those interests of the United States delineated above, and thus 
    warrant addition to the list of injurious fish in 50 CFR 16.13.
        We are soliciting public comments and supporting data, to gain 
    additional information, on this proposed rule to add all forms of live 
    silver and largescale silver carp, gametes, eggs, and hybrids, to the 
    list of injurious wildlife under the Lacey Act. We specifically seek 
    comment on the following questions:
        (1) What regulations does your State have pertaining to the use, 
    transport, and/or production of silver or largescale silver carp?
        (2) How many silver carp are currently in culture or used to 
    control algae in ponds, in how many and which States? Please provide 
    the number of silver carp, if any, permitted within each State.
        (3) What would it cost to eradicate silver carp or largescale 
    silver carp individuals and/or populations, or similar nonnative 
    populations, if found?
        (4) What are the costs of implementing propagation, recovery, and 
    restoration programs for native fish or other native species? What 
    State-listed species would be impacted by the introduction of silver or 
    largescale silver carp?
        (5) What is the economic value of commercial fisheries that have 
    been or could be impacted by silver or largescale silver carp?
        (6) How many fishermen sell live silver carp?
        (7) What are the annual sales and landings for live and/or dead 
    silver carp? What is the magnitude of the commercial market for live 
    silver carp, if any?
        (8) What is the consumer surplus generated from fishing for native 
    fish or fishing-related expenditures such as food, lodging, and 
    equipment? What is the ex-vessel revenue from fishing for native fish 
    that are more valuable than silver carp?
        (9) What is the economic value of baitfish industries in each 
    State? How would the presence of wild silver carp affect baitfish 
    imports or exports within a State?
    
    Description of the Proposed Rule
    
        The regulations contained in 50 CFR part 16 implement the Lacey Act 
    as amended. Under the terms of that law, the Secretary of the Interior 
    is authorized to prohibit by regulation certain activities involving 
    wild mammals, wild birds, fish, mollusks, crustaceans, amphibians, 
    reptiles, and the offspring or eggs of any of the foregoing that are 
    injurious to human beings, to the interests of agriculture, 
    horticulture, or forestry, or to the wildlife or wildlife resources of 
    the United States. The lists of injurious wildlife species are at 50 
    CFR 16.11 to 16.15. By adding all forms of live silver carp and 
    largescale silver carp, gametes, eggs and hybrids to the list of 
    injurious wildlife, their importation into the United States, and 
    transportation between States, the District of Columbia, the 
    Commonwealth of Puerto Rico, or any territory or possession of the 
    United States by any means whatsoever would be prohibited, except by 
    permit for zoological, educational, medical, or scientific purposes (in 
    accordance with permit regulations at 50 CFR 16.22), or by Federal 
    agencies without a permit solely for their own use. Federal agencies 
    who wish to import silver or largescale silver carp for their own use 
    must file a written declaration with the District Director of Customs 
    and the U.S. Fish and Wildlife Service Inspector at the port of entry. 
    No live silver carp or largescale silver carp, progeny thereof, viable 
    eggs or hybrids imported or transported under a permit could be sold, 
    donated, traded, loaned, or transferred to any other person or 
    institution unless such person or institution has a permit issued by 
    the U.S. Fish and Wildlife Service. The interstate transportation of 
    all forms of live silver carp or largescale silver carp, gametes, 
    viable eggs or hybrids currently held in the United States for any 
    purpose would be prohibited without a permit.
        This action is being considered in order to protect the welfare and 
    survival of native wildlife and wildlife resources and the health and 
    welfare of human beings from the potential negative impacts of silver 
    carp and largescale silver carp by adding them to the list of injurious 
    wildlife and preventing their importation and interstate movement.
        Each State can regulate the transportation and possession of silver 
    carp and largescale silver carp within its State boundaries, but States 
    are not able to prohibit the importation into the United States or the 
    interstate transportation of these species. If one State allows the use 
    of either species, and if either species is introduced to natural 
    waters that are connected to other States' waterbodies, the silver or 
    largescale silver carp could be introduced to a State that prohibits 
    their use or possession, potentially impacting that State's natural 
    resources. Many States are asking the Federal Government to prohibit 
    the importation and interstate transportation of silver carp and have 
    submitted letters of support for the addition of silver carp to the 
    list of injurious wildlife. They are concerned that interstate 
    transportation, through trucking accidents or exchange of hauling 
    water, could result in the introduction of silver carp into State 
    waters where they do not exist and are prohibited by State law. In 
    addition, they are concerned that if their importation into the United 
    States is still allowed, silver carp could become established in new 
    waterways where they do not currently exist through human movement. The 
    evaluation of injuriousness follows the biology and natural history 
    summary sections for each species.
    
    Silver Carp
    
    Biology and Natural History
    
        The commonly named silver carp belongs to the family Cyprinidae, 
    with the species name of Hypophthalmichthys molitrix. The silver carp 
    is a deep-bodied fish with scale counts typically ranging from 85 to 
    108. Adult coloration is typically gray-
    
    [[Page 52307]]
    
    black along its top with upper sides olive-green that grade to silver 
    along its side and stomach. Fins are dark and without true spines. 
    Large adults can reach over 1.2 meters (m) in length and 50 kilograms 
    (kg) in weight. The gill rakers of silver carp are unique and form a 
    highly specialized filtering apparatus.
        The silver carp is a freshwater species that can live in slightly 
    brackish waters. Silver carp occur naturally in a variety of freshwater 
    habitats including large rivers and warm water ponds, lakes, and 
    backwaters that receive flooding or are otherwise connected to large 
    rivers. They also have been introduced to ponds, lakes, reservoirs, and 
    canals where they grow well, but may not spawn and recruit without 
    access to an appropriate riverine habitat. Silver carp usually occupy 
    the upper and middle layers of the water column and are quite tolerant 
    of broad water temperatures: from 4 [deg]C to 40 [deg]C.
        Silver carp can be distinguished from all native North American 
    cyprinids, except the golden shiner, by the presence of a well-
    developed ventral keel. It can be distinguished from the golden shiner 
    in having very small scales (lateral line scales 85-108) compared to 
    the golden shiner (39-51). Silver carp have only four pharyngeal teeth 
    per side in a single row while the golden shiner has five on each side 
    in a single row.
        Small silver carp may resemble shad (Dorosoma species). Of the nine 
    established nonindigenous cyprinids in the United States, the silver 
    carp is most similar to bighead carp. The silver carp is also very 
    similar to largescale silver carp, a species which is not known to be 
    in the United States.
        Though they are considered a deep water, schooling species, in the 
    Missouri River these fish generally stay between 1 and 5 m deep and are 
    rarely observed on the surface until disturbed. Once disturbed, silver 
    carp often swim rapidly near the surface creating a characteristic 
    large wake and regularly jump out of the water, particularly in 
    response to outboard motors.
    
    Hybrids
    
        Hybridization between closely related species of cyprinids (e.g., 
    species of the genus Hypophthalmichthys) is not unusual. Silver carp 
    are known to hybridize and to produce viable offspring with both 
    bighead (Hypophthalmichthys nobilis) and largescale silver carps. 
    Hybrids of silver and bighead carps are often used in aquaculture in 
    other countries. Both crosses (bighead carp x silver carp and the 
    reciprocal cross) are fertile. Hybrids of bighead and silver carps 
    often strongly resemble one or the other of the parent species.
        Bighead carp x silver carp are common in parts of the United States 
    and are likely to be the result of wild spawning, not escapement of 
    artificially induced hybrids because neither silver carp nor the 
    hybrids are known to be in use in aquaculture in the United States. 
    Five percent of the adult Hypophthalmichthys caught in the lower 
    Missouri River in 2004 were hybrids. Hybridization between closely 
    related cyprinid fishes occurs most commonly where a species has been 
    introduced; hybridization between cyprinids typically occurs when 
    members of related species share similar spawning habitat, behavior, 
    and season because of the loss of environmental cues that inhibit 
    hybridization behavior. The presence of large numbers of wild-spawned 
    hybrids implies that bighead and silver carps often spawn in the same 
    place at the same time in United States waters. Although there has been 
    moderate success in artificially producing hybrids of 
    Hypophthalmichthys spp. and common carp (Cyprinus carpio), the spawning 
    locations and behaviors of the two genera are so different that 
    production of wild hybrids would be unlikely.
    
    Habitat Use
    
        Silver carp in the Missouri River occupy primarily low-velocity 
    water 1 to 5 m deep in all months of the year and use low-velocity 
    sections of Missouri River tributaries. Adult silver carp aggregate in 
    pool habitats to overwinter. Preliminary research indicates that silver 
    carp in the Missouri River are active in winter, with activity slowing 
    at less than 4 [deg]C and little movement occurring at temperatures 
    below 2 [deg]C. Silver carp used tributaries to larger rivers in the 
    summer.
        Large lakes connected to rivers often serve as nursery areas for 
    silver carp. Juvenile silver carp typically remain in backwater 
    habitats whereas adults are typically found in main channels of rivers. 
    There is limited data about the habitat use of juvenile silver carp in 
    the United States because their introduction, spread and establishment 
    is relatively recent and ongoing. Young-of-year silver carp were found 
    in abundance in the backwaters of the middle Mississippi River, and 
    juvenile silver carp were collected in low-velocity and off-channel 
    habitats in the Missouri, Mississippi, Wabash, and lower Ohio rivers. 
    Young-of-year (<100 millimeters="" (mm))="" and="" juvenile="" (100-500="" mm)="" silver="" carp="" collected="" for="" the="" long="" term="" resource="" monitoring="" program="" (ltrmp),="" of="" the="" u.s.="" army="" corps="" of="" engineers,="" were="" found="" in="" similar="" proportions="" between="" main="" channel="" borders,="" side="" channel="" borders,="" and="" contiguous="" backwaters.="" reproduction="" and="" growth="" the="" reproductive="" potential="" of="" silver="" carp="" is="" high="" and="" increases="" with="" body="" size.="" estimates="" range="" from="" 145,000-5,400,000="" eggs="" for="" fish="" 3.18-12.1="" kg.="" eggs="" must="" be="" incubated="" in="" waters="" with="" fairly="" high="" ionic="" concentrations.="" silver="" carp="" mature="" anywhere="" from="" 3-8="" years,="" and="" males="" usually="" mature="" one="" year="" earlier="" than="" females.="" silver="" carp="" use="" discrete="" spawning="" sites="" repeatedly.="" silver="" carp="" usually="" spawn="" in="" the="" spring="" and="" early="" summer="" after="" a="" rise="" in="" water="" levels="" with="" water="" temperatures="" ranging="" from="" 18-26="" [deg]c,="" though="" larva="" has="" been="" collected="" from="" the="" lower="" missouri="" river="" in="" late="" august="" to="" mid-september.="" eggs="" are="" semi-="" buoyant,="" so="" spawning="" typically="" occurs="" in="" water="" of="" sufficient="" flow="" to="" keep="" the="" eggs="" from="" sinking="" to="" the="" bottom="" and="" dying.="" the="" same="" female="" may="" spawn="" twice="" during="" one="" growing="" season.="" there="" are="" indications="" of="" a="" prolonged="" spawning="" period,="" into="" late="" summer="" or="" early="" fall,="" in="" the="" united="" states.="" silver="" carp="" can="" grow="" quickly:="" 20="" to="" 30="" kg="" in="" 5="" to="" 8="" years,="" and="" survival="" of="" silver="" carp="" in="" some="" culture="" ponds="" was="" 91%.="" water="" temperatures="" for="" maximum="" growth="" of="" silver="" carp="" are="" between="" 24-34="" [deg]c.="" silver="" carp="" are="" difficult="" to="" age,="" but="" have="" been="" reported="" to="" live="" 15-20+="" years.="" diet="" and="" feeding="" habits="" silver="" carp="" are="" primarily="" phytoplanktivores,="" but="" are="" highly="" opportunistic,="" eating="" phytoplankton,="" zooplankton,="" bacteria="" and="" detritus.="" silver="" carp="" will="" also="" bite="" on="" bread="" paste="" and="" dough="" balls="" used="" as="" bait.="" silver="" carp="" can="" effectively="" filter="" and="" consume="" smaller="" particles="" than="" bighead="" carp.="" their="" food="" consumption="" rate="" is="" high,="" but="" widely="" variable.="" fry="" at="" the="" smallest="" size="" class="" consumed="" up="" to="" 140%="" of="" their="" body="" weight="" daily;="" 63="" mg="" fingerlings="" consumed="" just="" more="" than="" 30%="" and="" 70-166="" mg="" fingerlings="" consumed="" 63%="" of="" their="" body="" weight.="" adult="" silver="" carp="" have="" been="" shown="" to="" consume="" 8.8="" kg="" of="" food="" per="" year,="" with="" 90%="" of="" the="" consumption="" occurring="" during="" the="" three="" warmest="" months="" of="" the="" year.="" in="" the="" missouri="" river,="" silver="" carp="" sometimes="" had="" full="" guts="" at="" temperatures="" lower="" than="" 4="" [deg]c.="" studies="" consistently="" show="" that="" filter="" feeding="" by="" silver="" carp="" shifts="" the="" species="" composition="" of="" the="" phytoplankton="" community="" to="" smaller="" species.="" silver="" carp="" consume="" zooplankton,="" especially="" when="" phytoplankton="" abundance="" is="" low.="" studies="" also="" consistently="" show="" that="" the="" [[page="" 52308]]="" presence="" of="" silver="" carp="" results="" in="" a="" zooplankton="" community="" dominated="" by="" smaller="" individuals.="" history="" of="" introduction="" there="" are="" conflicting="" reports="" about="" the="" first="" importation="" of="" silver="" carp="" into="" the="" united="" states.="" one="" report="" said="" that="" silver="" carp="" were="" introduced="" in="" 1971="" from="" taiwan="" for="" algae="" control="" in="" sewage="" lagoons.="" another="" report="" stated="" that="" silver="" carp="" were="" introduced="" in="" 1972="" under="" an="" agreement="" of="" maintenance="" with="" the="" arkansas="" game="" and="" fish="" commission.="" a="" third="" citation="" said="" silver="" carp="" were="" introduced="" into="" arkansas="" in="" 1973="" as="" a="" potential="" addition="" to="" fish="" production="" ponds.="" regardless="" of="" the="" specific="" date,="" the="" major="" pathway="" for="" introduction="" of="" silver="" carp="" in="" the="" united="" states="" was="" importation="" for="" biological="" control="" of="" plankton="" in="" sewage="" lagoons="" and="" culture="" ponds.="" the="" pathway="" that="" led="" to="" presence="" of="" this="" species="" in="" open="" waters="" probably="" was="" escape="" from="" facilities.="" there="" is="" little,="" if="" any,="" current="" use="" of="" silver="" carp="" for="" algae="" control.="" soon="" after="" importation,="" silver="" carp="" were="" used="" in="" research="" projects="" and="" stocked="" into="" wastewater="" treatment="" lagoons="" and="" impoundments="" in="" several="" states.="" in="" 1974="" or="" 1975,="" silver="" carp="" were="" collected="" from="" bayou="" meto="" and="" the="" white="" river,="" arkansas="" county,="" arkansas.="" in="" january="" 1980,="" several="" silver="" carp="" were="" collected="" from="" crooked="" creek,="" northeastern="" arkansas="" county,="" which="" flowed="" through="" two="" private="" fish="" hatcheries="" possessing="" silver="" carp.="" by="" 1981,="" silver="" carp="" had="" been="" collected="" from="" the="" white,="" arkansas,="" and="" mississippi="" rivers="" in="" arkansas.="" from="" there,="" they="" continued="" to="" spread="" through="" the="" mississippi="" river="" basin.="" silver="" carp="" have="" been="" collected="" from="" the="" natural="" waters="" of="" 16="" states="" and="" puerto="" rico.="" silver="" carp="" are="" well="" established="" throughout="" much="" of="" the="" mississippi="" river="" basin,="" and="" its="" range="" appears="" to="" be="" expanding="" in="" that="" basin.="" pathways="" of="" introduction="" there="" are="" several="" potential="" pathways="" for="" further="" introductions="" of="" silver="" carp="" into="" additional="" water="" bodies="" that="" may="" spread="" existing="" populations="" of="" silver="" carp="" in="" the="" united="" states.="" one="" pathway="" is="" through="" the="" release="" of="" baitfishes="" contaminated="" with="" silver="" carp.="" other="" potential="" pathways="" that="" would="" likely="" spread="" silver="" carp="" to="" new="" waterbodies="" in="" the="" united="" states="" include="" intentional="" release,="" ballast="" water="" release,="" spread="" by="" commercial="" fishing="" activities,="" and="" release="" or="" escape="" from="" livehaulers="" that="" support="" commercial="" fishing="" or="" release="" associated="" with="" the="" sale="" of="" the="" species="" in="" live="" food="" fish="" markets,="" regardless="" of="" whether="" the="" fish="" were="" cultured="" in="" fish="" farms="" or="" were="" caught="" live="" in="" the="" wild.="" silver="" carp="" may="" be="" introduced="" and="" become="" established="" in="" new="" waterways="" beyond="" their="" current="" ranges="" through="" human="" use="" and="" movement.="" uses="" worldwide="" more="" silver="" carp="" are="" produced="" than="" any="" other="" species="" of="" freshwater="" fish;="" they="" are="" raised="" for="" food="" or="" stocked="" for="" fishing.="" silver="" carp="" are="" not="" presently="" being="" cultured="" commercially="" for="" food="" in="" the="" united="" states="" and="" have="" been="" minimally="" cultured="" in="" the="" last="" 20="" years.="" the="" ability="" of="" silver="" carp="" to="" effectively="" filter="" particles="" and="" reliance="" on="" phytoplankton="" for="" much="" of="" its="" diet="" has="" led="" to="" the="" use="" of="" silver="" carp="" as="" a="" biological="" control="" agent="" for="" phytoplankton.="" silver="" carp="" have="" been="" studied="" as="" a="" potential="" tool="" for="" controlling="" excess="" nutrients="" in="" wastewater="" ponds,="" with="" mixed="" results.="" native="" range="" and="" potential="" range="" in="" the="" united="" states="" in="" asia="" (china="" and="" eastern="" siberia),="" silver="" carp="" are="" native="" from="" about="" 54="" [deg]n="" southward="" to="" 21="" [deg]n.="" most="" of="" north="" america="" falls="" within="" these="" latitudes.="" this="" fact,="" along="" with="" establishment="" of="" this="" species="" in="" countries="" with="" climates="" as="" tropical="" as="" vietnam,="" as="" cold="" and="" arid="" as="" afghanistan="" and="" pakistan,="" and="" as="" temperate="" as="" kyrgyzstan="" and="" latvia,="" leads="" to="" the="" conclusion="" that="" climate="" alone="" in="" the="" united="" states="" should="" not="" limit="" distribution="" of="" silver="" carp.="" silver="" carp="" are="" likely="" to="" become="" established="" in="" the="" great="" lakes,="" especially="" given="" their="" close="" proximity.="" there="" are="" 22="" rivers="" flowing="" into="" lakes="" erie,="" huron,="" michigan,="" and="" superior="" that="" are="" potential="" spawning="" sites="" for="" silver="" carp.="" the="" genetic="" algorithm="" for="" rule-set="" prediction="" (garp)="" niche="" modeling="" tool="" estimates="" that="" united="" states="" distribution="" of="" silver="" carp="" could="" highly="" likely="" include="" most="" of="" the="" midwest="" and="" eastern="" u.s.="" waterways,="" including="" the="" chesapeake="" bay,="" and="" tributaries,="" and="" the="" connecticut="" river="" system.="" based="" on="" the="" garp="" model,="" silver="" carp,="" if="" introduced,="" are="" likely="" to="" also="" establish="" in="" the="" columbia="" river="" system="" in="" the="" northwest="" and="" possibly="" in="" parts="" of="" the="" colorado="" and="" sacramento/san="" joaquin="" systems.="" because="" food="" availability,="" predation,="" and="" competition="" are="" not="" known="" to="" limit="" populations="" of="" this="" species="" elsewhere,="" access="" to="" habitats="" required="" for="" successful="" reproduction="" (i.e.,="" substantial="" lengths="" of="" flowing="" water)="" will="" play="" a="" large="" role="" in="" determining="" potential="" range="" of="" silver="" carp="" in="" american="" waters.="" another="" factor="" that="" may="" limit="" the="" distribution="" of="" silver="" carp="" in="" the="" united="" states="" is="" the="" requirement="" to="" incubate="" eggs="" in="" waters="" with="" fairly="" high="" ionic="" concentrations.="" largescale="" silver="" carp="" biology="" and="" natural="" history="" the="" commonly="" named="" largescale="" silver="" carp="" (or="" southern="" silver="" carp,="" vietnamese="" carp,="" or="" harmandi="" silver="" carp)="" belongs="" to="" the="" family="" cyprinidae,="" with="" the="" species="" name="" of="" hypophthalmichthys="" harmandi.="" the="" largescale="" silver="" carp="" is="" physically="" most="" similar="" to="" the="" silver="" carp,="" but="" does="" resemble="" bighead="" carp="" as="" well.="" the="" relatively="" larger="" scale="" size="" of="" the="" largescale="" silver="" carp="" is="" the="" most="" reliable="" characteristic="" to="" distinguish="" it="" from="" silver="" carp.="" the="" number="" of="" scales="" along="" the="" lateral="" line="" of="" the="" largescale="" silver="" carp="" range="" from="" 77="" to="" 88="" compared="" to="" the="" silver="" carp="" with="" 85="" to="" 108.="" scale="" rows="" above="" the="" lateral="" line="" in="" largescale="" silver="" carp="" range="" from="" 21="" to="" 23="" compared="" to="" 29="" to="" 30="" in="" the="" silver="" carp.="" because="" largescale="" silver="" carp="" remain="" deep="" in="" the="" water="" column="" during="" daylight="" hours="" and="" swim="" toward="" the="" surface="" at="" night="" to="" feed="" on="" plankton,="" they="" may="" be="" less="" prone="" to="" jumping="" than="" silver="" carp="" in="" response="" to="" sounds="" of="" boat="" engines="" during="" daytime.="" hybrids="" largescale="" silver="" carp="" are="" known="" to="" hybridize="" and="" to="" produce="" viable="" offspring="" with="" silver="" carp.="" in="" northern="" vietnam,="" native="" largescale="" silver="" carp,="" introduced="" silver="" carp,="" and="" their="" hybrids="" are="" cultured="" together.="" largescale="" silver="" carp="" grow="" faster="" than="" silver="" carp="" but="" hybrids="" do="" not="" grow="" as="" quickly="" as="" pure="" largescale="" silver="" carp.="" no="" additional="" information="" on="" polyculture="" of="" largescale="" silver="" carp="" with="" other="" fish="" species="" was="" found.="" largescale="" and="" silver="" carp="" hybrids="" are="" tolerant="" of="" a="" temperate="" climate="" (ca.="" 42-46="" [deg]n).="" habitat="" use="" largescale="" silver="" carp="" prefer="" slow-moving,="" plankton-rich="" open="" waters.="" this="" species="" is="" a="" nocturnal="" feeder="" and="" remains="" in="" deeper="" waters="" during="" daylight="" hours.="" largescale="" silver="" carp="" is="" most="" closely="" related="" to="" silver="" carp,="" with="" which="" it="" hybridizes,="" therefore="" its="" salinity="" tolerance="" is="" probably="" similar="" to="" that="" of="" silver="" carp,="" which="" is="" a="" freshwater="" species="" that="" can="" live="" in="" slightly="" brackish="" waters.="" reproduction="" and="" growth="" the="" reproductive="" capability="" is="" expected="" to="" be="" similar="" to="" that="" of="" silver="" carp,="" though="" largescale="" silver="" carp="" reach="" sexual="" maturity="" at="" a="" younger="" age="" than="" silver="" carp.="" females="" reach="" maturity="" in="" 2="" years="" and="" males="" in="" 1="" year.="" spawning="" [[page="" 52309]]="" typically="" occurs="" in="" rivers="" during="" rains="" or="" floods="" in="" may="" and="" june,="" although="" spawning="" may="" be="" postponed="" until="" mid-august.="" because="" largescale="" silver="" carp="" and="" silver="" carp="" are="" closely="" related="" and="" hybridize,="" spawning="" requirements="" are="" likely="" similar.="" the="" mean="" growth="" rate="" is="" greater="" for="" largescale="" silver="" carp="" than="" for="" silver="" carp.="" no="" information="" was="" found="" on="" longevity="" of="" largescale="" silver="" carp,="" but="" silver="" carp="" can="" live="" 15-20+="" years="" suggesting="" the="" possibility="" of="" a="" similar="" longevity="" in="" the="" closely="" related="" largescale="" silver="" carp.="" some="" adults="" may="" weigh="" 20-30="" kg.="" diet="" and="" feeding="" habits="" largescale="" silver="" carp="" feed="" on="" phytoplankton="" and="" prefer="" slow-="" moving,="" plankton-rich="" open="" waters.="" this="" species="" is="" a="" nocturnal="" feeder="" and="" remains="" in="" deeper="" waters="" during="" daylight="" hours.="" because="" this="" species="" is="" most="" closely="" related="" to="" silver="" carp,="" their="" food="" and="" feeding="" habits="" are="" likely="" similar.="" uses="" there="" is="" no="" indication="" that="" the="" largescale="" silver="" carp="" have="" been="" imported="" into="" or="" introduced="" into="" the="" open="" waters="" of="" united="" states.="" largescale="" silver="" carp="" are="" considered="" the="" most="" important="" species="" for="" culture="" in="" vietnam;="" the="" rapid="" growth="" and="" high="" fat="" content="" of="" this="" fish="" has="" made="" it="" an="" economically="" important="" species="" for="" food.="" because="" this="" species="" is="" most="" closely="" related="" to="" silver="" carp,="" its="" potential="" effectiveness="" in="" controlling="" algae="" and="" its="" effect="" on="" excess="" nutrients="" in="" closed="" systems="" is="" possibly="" similar="" to="" that="" of="" silver="" carp.="" native="" range="" and="" potential="" range="" in="" the="" united="" states="" largescale="" silver="" carp="" are="" native="" to="" fresh="" waters="" of="" northern="" hainan="" island,="" china,="" and="" the="" red="" (hong="" ha)="" river="" of="" northern="" vietnam.="" the="" native="" range="" of="" largescale="" silver="" carp="" is="" subtropical="" to="" tropical="" (21-22="" [deg]n),="" making="" it="" the="" southernmost="" fish="" of="" the="" genus.="" the="" species="" does="" not="" occur="" naturally="" on="" the="" chinese="" mainland.="" within="" its="" native="" range,="" largescale="" silver="" carp="" occur="" in="" subtropical="" to="" tropical="" climates.="" therefore,="" should="" pure="" stock="" be="" introduced="" to="" u.s.="" waters,="" its="" potential="" range="" would="" likely="" be="" limited="" to="" subtropical="" waters="" such="" as="" those="" present="" in="" southern="" florida,="" southern="" texas,="" and="" hawaii.="" lack="" of="" access="" to="" suitable="" rivers="" for="" spawning="" in="" these="" areas="" may="" preclude="" successful="" spawning.="" hybrids="" of="" largescale="" silver="" and="" silver="" carps,="" however,="" would="" be="" expected="" to="" tolerate="" temperate="" waters="" as="" they="" do="" in="" kazakhstan="" at="" about="" 42-46="" [deg]n.="" factors="" that="" contribute="" to="" injuriousness="" for="" silver="" carp="" introduction="" and="" spread="" the="" major="" pathway="" for="" introduction="" of="" silver="" carp="" in="" the="" united="" states="" was="" importation="" for="" biological="" control="" of="" plankton="" in="" culture="" ponds="" and="" sewage="" lagoons.="" the="" pathway="" that="" led="" to="" the="" presence="" of="" this="" species="" in="" open="" waters="" of="" the="" united="" states="" was="" probably="" escape="" from="" these="" facilities.="" subsequent="" escapes="" and="" the="" mixture="" of="" silver="" carp="" with="" other="" species="" that="" were="" stocked="" may="" have="" contributed="" to="" the="" expansion="" of="" the="" species'="" range.="" silver="" carp="" are="" difficult="" to="" handle="" and="" transport="" because="" of="" their="" propensity="" to="" jump="" and="" avoid="" being="" taken="" by="" seines.="" these="" attributes="" have="" resulted="" in="" little="" silver="" carp="" culture="" in="" the="" united="" states="" since="" 1985.="" silver="" carp="" are="" not="" being="" cultured="" commercially="" at="" this="" time;="" however,="" should="" culture="" of="" silver="" carp="" resume,="" a="" potential="" pathway="" for="" introduction="" would="" be="" escape="" or="" release="" from="" a="" facility="" or="" during="" the="" transport="" and="" sale="" of="" live="" fish="" in="" retail="" markets.="" other="" more="" likely="" pathways="" that="" may="" aid="" the="" spread="" of="" existing="" populations="" of="" silver="" carp="" include="" connected="" waterways,="" contamination="" of="" pond-grown="" baitfishes="" with="" silver="" carp,="" ballast="" water="" release,="" release="" or="" escape="" from="" livehaulers="" that="" support="" commercial="" fisheries,="" or="" spread="" by="" commercial="" fishers="" themselves.="" wild="" silver="" carp="" are="" at="" risk="" of="" being="" spread="" when="" juveniles="" are="" collected="" by="" cast="" net="" for="" use="" as="" live="" baitfish.="" silver="" carp="" juveniles="" are="" very="" similar="" in="" appearance="" to="" shad="" and="" anglers="" sometimes="" catch="" young="" silver="" carp="" and="" use="" them="" as="" live="" bait.="" release="" of="" live="" bait="" has="" been="" identified="" as="" a="" source="" for="" more="" than="" 100="" introductions="" of="" fishes="" beyond="" their="" natural="" range="" in="" the="" united="" states.="" although="" adult="" and="" market-sized="" silver="" carp="" are="" fragile="" and="" do="" not="" survive="" collection="" and="" transport="" well,="" fingerling="" silver="" carp="" are="" less="" susceptible="" to="" mortality="" due="" to="" handling="" stress.="" other="" potential="" pathways="" for="" further="" introductions="" of="" silver="" carp="" into="" the="" wild="" involve="" those="" associated="" with="" the="" sale="" of="" the="" species="" in="" live="" food="" fish="" markets.="" silver="" carp,="" caught="" as="" bycatch,="" may="" be="" sold="" as="" fillets="" or="" to="" live="" fish="" markets.="" another="" potential="" pathway="" is="" the="" intentional="" release="" of="" silver="" carp="" through="" prayer="" release="" (the="" ceremonial="" release="" of="" a="" fish="" in="" honor="" of="" the="" one="" that="" will="" be="" eaten).="" silver="" carp="" have="" survived,="" become="" established="" in="" river="" systems,="" and="" have="" been="" reproducing="" in="" natural="" waters="" of="" the="" united="" states="" since="" at="" least="" 1995.="" because="" silver="" carp="" can="" occupy="" lakes,="" there="" is="" serious="" concern="" that="" this="" species="" will="" further="" expand="" its="" range="" in="" the="" united="" states="" beyond="" riverine="" environments="" and="" into="" lake="" environments="" including="" the="" great="" lakes.="" in="" its="" native="" range,="" juveniles="" and="" adults="" are="" found="" in="" lakes="" and="" reservoirs.="" silver="" carp="" may="" be="" capable="" of="" establishing="" reproducing="" populations="" in="" other="" major="" river="" systems,="" such="" as="" the="" potomac/chesapeake,="" columbia,="" and="" sacramento/san="" joaquin="" delta.="" hybrids="" hybridization="" of="" silver="" carp="" with="" native="" fishes="" is="" not="" possible,="" but="" hybridization="" has="" occurred="" between="" silver="" carp="" and="" bighead="" carp="" (h.="" nobilis),="" a="" nonnative="" species="" also="" present="" in="" the="" mississippi="" river="" basin,="" and="" between="" silver="" carp="" and="" largescale="" silver="" carp="" (h.="" harmandi).="" hybridization="" may="" also="" be="" possible="" with="" grass="" carp.="" potential="" effects="" on="" native="" species="" competition="" for="" food="" and="" habitat="" with="" other="" planktivorous="" fishes="" and="" with="" post-larvae="" and="" early="" juveniles="" of="" most="" native="" fishes="" is="" likely="" high.="" since="" nearly="" all="" fishes="" are="" planktivorous="" as="" larvae="" and="" juveniles,="" it="" is="" highly="" likely="" that="" silver="" carp="" will="" adversely="" affect="" most="" native="" fishes="" in="" the="" mississippi="" river="" and="" also="" the="" great="" lakes="" basins,="" if="" established.="" silver="" carp="" will="" most="" likely="" affect="" native="" adults="" in="" the="" mississippi="" river="" basin,="" such="" as="" paddlefish="" (polyodon="" spathula),="" bigmouth="" buffalo="" (ictiobus="" cyprinellus),="" gizzard="" shad="" (dorosoma="" cepedianum),="" the="" regionally="" abundant="" emerald="" shiner="" (notropis="" atherinoides),="" and="" threadfin="" shad="" (dorosoma="" petenens),="" particularly="" in="" waters="" where="" food="" may="" become="" limited.="" paddlefish,="" native="" to="" the="" mississippi="" river="" basin="" and="" gulf="" of="" mexico="" river="" drainages="" from="" east="" texas="" to="" alabama,="" is="" a="" large="" river="" fish="" that="" has="" declined="" in="" abundance="" in="" recent="" years="" because="" of="" overharvest="" and="" habitat="" alteration.="" like="" the="" silver="" carp,="" paddlefish="" use="" plankton="" as="" its="" primary="" food="" source,="" so="" silver="" carp="" or="" hybrids="" would="" directly="" compete="" with="" paddlefish="" for="" food="" throughout="" most="" of="" the="" paddlefish's="" range.="" other="" fish,="" such="" as="" the="" buffalos="" or="" shads,="" use="" both="" plankton="" and="" aquatic="" invertebrates="" as="" food.="" while="" these="" fishes="" are="" currently="" more="" common="" than="" paddlefish,="" they="" may="" be="" at="" risk="" if="" silver="" carp="" or="" silver="" x="" largescale="" silver="" carp="" hybrids="" or="" silver="" x="" bighead="" hybrids="" are="" able="" to="" establish="" and="" reduce="" plankton.="" gizzard="" shad="" are="" a="" primary="" forage="" base="" for="" predacious="" fishes="" and="" important="" to="" the="" ecology="" of="" midwestern="" rivers;="" thus,="" the="" potential="" [[page="" 52310]]="" competition="" with="" silver="" carp="" in="" these="" waters="" is="" cause="" for="" concern.="" if="" silver="" carp="" negatively="" affect="" important="" planktivorous="" forage="" fishes="" such="" as="" the="" gizzard="" shad="" and="" emerald="" shiner,="" fishes="" and="" birds="" that="" prey="" on="" these="" species="" would="" likely="" also="" be="" negatively="" affected.="" adult="" silver="" carp="" are="" too="" large="" to="" be="" preyed="" on="" by="" almost="" any="" native="" predator.="" young="" silver="" carp="" have="" likely="" been="" incorporated="" into="" the="" diets="" of="" piscivorous="" birds="" and="" fishes="" to="" some="" degree,="" but="" the="" extent="" of="" this="" predation="" is="" not="" known.="" ecosystem="" balance="" is="" likely="" to="" be="" modified="" if="" silver="" carp="" populations="" become="" large="" enough="" to="" dominate="" other="" planktivorous="" fish="" species.="" silver="" carp="" will="" likely="" have="" major="" effects="" on="" nutrient="" cycling="" and="" may="" have="" adverse="" effects="" on="" primary="" productivity,="" which="" could="" alter="" food="" webs="" and="" ultimately="" alter="" nutrient="" and="" energy="" cycling="" in="" aquatic="" communities.="" the="" most="" likely="" negative="" effect="" would="" be="" an="" alteration="" of="" fish="" community="" structure="" through="" competition="" for="" food.="" fishes="" and="" mussels="" that="" are="" determined="" to="" be="" candidates="" for="" listing="" under="" the="" endangered="" species="" act="" would="" be="" at="" risk.="" habitat="" degradation="" there="" is="" low="" risk="" of="" silver="" carp="" causing="" direct="" habitat="" degradation="" and/or="" destruction,="" although="" the="" presence="" of="" silver="" carp="" is="" sometimes="" associated="" with="" decreased="" water="" clarity,="" which="" may="" also="" impact="" benthic="" chemistry="" and="" community="" structure.="" the="" effect="" of="" these="" fishes="" on="" nutrients,="" sediment="" re-suspension="" (which="" can="" stimulate="" plankton="" growth),="" and="" decreasing="" dissolved="" oxygen="" varies.="" excrement="" from="" silver="" carp="" (which="" can="" equal="" their="" body="" weight="" in="" 10="" days)="" has="" organically="" enriched="" lake="" bottoms="" and="" altered="" the="" benthic="" macroinvertebrate="" community="" structure.="" once="" established,="" these="" fish="" are="" likely="" to="" cause="" shifts="" in="" the="" food="" web="" and="" compete="" with="" other="" zooplanktivorous="" fishes="" and="" fish="" larvae="" for="" food.="" changes="" in="" the="" community="" structure="" towards="" smaller="" size="" plankton="" may="" have="" negative="" effects="" on="" fishes="" native="" to="" the="" united="" states="" that="" subsist="" on="" larger="" zooplankton.="" potential="" pathogens="" many="" species="" of="" parasites="" and="" bacterial="" diseases="" occur="" in="" silver="" carp.="" the="" only="" viral="" disease="" agent="" of="" silver="" carp="" found="" in="" the="" literature="" is="" rhabdovirus="" carpio,="" the="" causative="" agent="" for="" spring="" viraemia="" of="" carp="" (svc),="" a="" systemic,="" acute,="" and="" highly="" contagious="" infection="" commonly="" occurring="" in="" the="" spring="" when="" water="" temperatures="" are="" below="" 18="" [deg]c.="" silver="" carp="" are="" susceptible="" to="" many="" diseases="" caused="" by="" parasitic="" protozoans="" and="" trematodes="" and="" several="" crustaceans="" have="" also="" been="" reported="" from="" silver="" carp.="" although="" there="" have="" been="" studies="" of="" disease-causing="" agents="" of="" silver="" carp,="" none="" have="" dealt="" with="" transfer="" of="" these="" pathogens="" to="" native="" fishes="" of="" the="" united="" states.="" two="" parasites="" are="" a="" potential="" threat="" to="" native="" north="" american="" fishes,="" including="" cyprinids:="" gill-damaging="" lernaea="" cyprinacea,="" known="" as="" anchorworm="" (this="" parasite="" is="" also="" known="" to="" affect="" salmonids="" and="" eels),="" and="" bothriocephalus="" acheilognathi,="" known="" as="" asian="" carp="" tapeworm.="" the="" asian="" carp="" tapeworm="" has="" infected="" native="" fishes="" of="" concern="" in="" five="" states:="" arizona,="" colorado,="" nevada,="" new="" mexico,="" and="" utah.="" silver="" carp="" are="" hosts="" of="" this="" parasite,="" but="" suffer="" minimal="" adverse="" effects="" from="" it.="" as="" hosts="" of="" this="" tapeworm,="" silver="" carp="" have="" the="" potential="" to="" spread="" it="" to="" native="" fishes="" beyond="" the="" five="" states="" listed="" above.="" this="" is="" a="" parasite="" that="" erodes="" mucus="" membranes="" and="" intestinal="" tissues,="" often="" leading="" to="" death="" of="" the="" host.="" some="" disease-causing="" agents="" harbored="" by="" silver="" carp="" pose="" health="" risks="" to="" humans.="" the="" psychotropic="" pathogen="" listeria="" monocytogenes="" has="" been="" found="" in="" market="" and="" fish="" farm="" samples="" of="" silver="" carp.="" clostridium="" botulinum="" was="" found="" in="" 1.1%="" of="" fresh="" and="" smoked="" samples="" of="" silver="" carp="" from="" the="" mazandaran="" province="" in="" iran.="" the="" toxigenic="" fungi="" aspergillus="" flavus,="" alternaria,="" penicillium,="" and="" fusarium="" were="" found="" from="" silver="" carp="" and="" from="" pond="" water="" in="" which="" they="" were="" raised="" at="" a="" fish="" farm="" in="" northern="" iran.="" in="" addition,="" live="" salmonella="" spp.="" can="" be="" found="" in="" silver="" carp="" for="" at="" least="" 14="" days="" after="" transfer="" to="" clean="" water="" and="" silver="" carp,="" therefore,="" should="" be="" considered="" as="" a="" potential="" carrier="" for="" salmonella="" (s.="" typhimumium).="" potential="" impacts="" to="" threatened="" and="" endangered="" wildlife="" adverse="" effects="" of="" silver="" carp="" on="" selected="" threatened="" and="" endangered="" freshwater="" mussels="" and="" fishes="" is="" likely="" to="" be="" moderate="" to="" high.="" there="" are="" currently="" 116="" fishes="" and="" 70="" mussels="" on="" the="" federal="" list="" of="" endangered="" and="" threatened="" wildlife.="" based="" on="" habitat="" requirements,="" it="" appears="" that="" 40="" fishes="" and="" 25="" mussels="" currently="" on="" the="" list="" would="" likely="" be="" impacted="" by="" the="" introduction="" and="" establishment="" of="" silver="" carp.="" habitat="" requirements,="" springs="" and="" small="" streams,="" of="" the="" remaining="" listed="" fishes="" and="" mussels="" would="" probably="" preclude="" any="" detectable="" effects="" as="" it="" is="" unlikely="" that="" silver="" carp="" could="" survive="" in="" such="" small="" bodies="" of="" water.="" adverse="" effects="" of="" established="" populations="" of="" silver="" carp="" on="" endangered="" and="" threatened="" fishes="" and="" mussels="" would="" vary="" between="" the="" two="" groups.="" adverse="" effects="" to="" fishes="" would="" most="" likely="" be="" through="" direct="" competition="" for="" food="" resources,="" particularly="" phytoplankton="" and,="" to="" a="" lesser="" extent,="" zooplankton,="" in="" the="" water="" column="" during="" the="" larval="" stage.="" potential="" for="" direct="" predation="" and="" injury="" of="" drifting="" fertilized="" eggs="" and="" larvae="" of="" native="" fishes="" also="" exists.="" mussels="" are="" also="" filter="" feeders="" but="" live="" partly="" or="" totally="" buried="" in="" the="" substrate.="" their="" association="" with="" the="" benthic="" environment="" means="" that="" they="" would="" be="" less="" likely="" to="" be="" affected="" by="" filter-feeding="" silver="" carp.="" nevertheless,="" changes="" in="" the="" fish="" community="" structure="" caused="" by="" silver="" carp="" are="" likely="" to="" have="" adverse="" effects="" on="" abundance="" and="" availability="" of="" host="" fishes="" required="" for="" mussel="" reproduction.="" nutrient="" levels="" are="" a="" concern="" because="" there="" is="" evidence="" of="" overloading="" of="" nutrients="" in="" waters="" where="" silver="" carp="" have="" been="" introduced.="" silver="" carp="" may="" consume="" too="" much="" of="" the="" food="" in="" the="" water="" and="" compete="" with="" native="" species="" for="" food.="" excrement="" from="" silver="" carp="" has="" been="" found="" to="" increase="" levels="" of="" certain="" nutrients,="" some="" which="" cannot="" be="" consumed="" by="" other="" animals="" in="" the="" digested="" form="" or="" may="" be="" harmful,="" which="" may="" lead="" to="" a="" net="" decrease="" in="" food="" resources="" available.="" the="" likelihood="" that="" silver="" carp="" would="" have="" adverse="" effects="" on="" designated="" critical="" habitats="" of="" threatened="" and="" endangered="" species="" is="" significant.="" there="" are="" currently="" 60="" species="" of="" fishes="" and="" 18="" mussels="" with="" designated="" critical="" habitat.="" of="" the="" fishes="" and="" mussels="" with="" critical="" habitat,="" at="" least="" 26="" inhabit="" lakes="" or="" reaches="" of="" streams="" large="" enough="" to="" support="" silver="" carp.="" in="" some="" habitats,="" silver="" carp="" can="" develop="" extremely="" large="" populations="" that="" would="" likely="" further="" imperil="" native="" fishes="" not="" currently="" on="" the="" federal="" list="" of="" endangered="" and="" threatened="" wildlife.="" large="" populations="" of="" silver="" carp="" are="" likely="" to="" alter="" the="" native="" fish="" community="" structure,="" resulting="" in="" decline="" of="" native="" mussels="" since="" many="" rely="" on="" native="" host="" fishes="" for="" reproduction.="" the="" fact="" that="" silver="" carp="" can="" become="" extremely="" abundant="" and="" reach="" a="" very="" large="" size="" (=""> 1 m in 
    length) in rivers, lakes, and reservoirs increases the probability of a 
    negative impact on aquatic ecosystems they invade.
    
    Potential Control
    
        Due to the extensive established range of silver carp in the 
    Mississippi River Basin, conventional control methods are not feasible 
    to reduce established populations. The damage to ancillary fisheries 
    resources through control measures would be substantial. Netting
    
    [[Page 52311]]
    
    and electrofishing may be effective in reducing populations, but many 
    non-target fish species would also be killed where such control 
    measures are used. Selective removal of silver carp is possible given 
    their location in the water column, but water trawling could also 
    remove other non-target fish such as paddlefish.
        Use of chemical treatments, such as rotenone, would be expensive, 
    only locally effective, and would negatively affect all fishes and 
    invertebrates, not just the target carp. Chemical treatment of the 
    Mississippi River and other large rivers in the United States to 
    control silver carp is not feasible, either logistically or 
    economically, and would have a low likelihood of success. Even most 
    nonlethal methods to prevent the spread of silver carp, such as 
    electrical barriers or acoustic, physical, or bubble barriers, would 
    negatively affect migratory native fishes. This effect might be 
    minimized, if somewhat species-specific sonic barriers were developed. 
    Treatment of ballast water in vessels moving from waters containing 
    reproductive populations of silver carp to waters devoid of these 
    fishes may become necessary. At present, there is no method known to 
    substantially reduce established populations of silver carp. On the 
    basis of presently available technology, eradication is not possible.
    
    Impacts to Humans
    
        Silver carp in the United States cause substantial impacts to the 
    health and welfare of human beings that use waterways infested with 
    silver carp. There are numerous reports of injuries to human beings and 
    damage to boats and boating equipment because of the jumping habits of 
    silver carp in the vicinity of moving motorized watercraft. Some 
    reported injuries include cuts from fins, black eyes, broken bones, 
    back injuries, and concussions. Silver carp also cause property damage 
    including broken radios, depth finders, fishing equipment, and 
    antennae. Some vessels have been fitted with a Plexiglas pilot's cab as 
    protection against jumping silver carp.
    
    Factors That Reduce or Remove Injuriousness for Silver Carp
    
    Control
    
        The large and growing range of silver carp in U.S. waterways makes 
    chemical control of established populations highly unlikely, both 
    physically and fiscally. Some control might be possible with massive 
    fishing efforts. Justifying the expense of such efforts would require a 
    large commercial demand, which does not currently exist, nor is likely 
    given the jumping behavior of silver carp which makes fishing 
    difficult.
        The ability to control spread of established populations depends on 
    their access to open waterways and riverine habitat to spawn. Barriers 
    may help control the spread of silver carp from the Mississippi River 
    basin into the Great Lakes or other waterbodies. However, there are 
    still several pathways by which silver carp from established 
    populations in the Mississippi River Basin might be moved to new 
    waterbodies, such as the Potomac River or Columbia River, and have the 
    potential to become established.
    
    Recovery of Disturbed Sites
    
        Because the ability to eradicate this species is low, there is 
    little likelihood for rehabilitation or recovery of ecosystems 
    disturbed by this species. Additionally infested waterways allow 
    connections to unpopulated sites. Utilizing sterile silver carp would 
    do little to reduce or remove injuriousness as the present range of 
    establishment in the Mississippi River Basin is too extensive for this 
    option to reduce current silver carp populations in this area. The use 
    of daughterless fish technology (introducing sterile males to produce 
    unviable eggs) may reduce populations, but this would take many years 
    before it would reduce numbers of fish where they currently exist. 
    Research is being conducted on the use of pheromones to control carp, 
    but it is years from demonstrating effectiveness in natural waters and 
    mass production. These technologies might be useful to prevent 
    establishment of silver carp in new areas.
    
    Potential Pathogens
    
        The potential for silver carp to infect native fishes with 
    pathogens is largely unknown. Should such transfers prove viable, the 
    ability and effectiveness to control these transfers to native fishes 
    would be low. The Asian carp tapeworm, for which silver carp is a known 
    host, has demonstrated potential to jump to native species of several 
    orders in other nations and within U.S. waters.
    
    Potential Ecological Benefits for Introduction
    
        The ability of silver carp to effectively filter particles and 
    reliance on phytoplankton for much of its diet led to research into 
    their effectiveness as a biological control agent for phytoplankton in 
    wastewater systems and other ponds. There is conflicting data 
    concerning the benefit of using silver carp to control excess 
    nutrients. Regardless of their effect on increasing or decreasing 
    phytoplankton and zooplankton abundance, studies have consistently 
    shown that filter feeding by silver carp shifts the species composition 
    of these communities to smaller species. Silver carps' effectiveness 
    has also been shown to be greatly influenced by the design of the 
    facility.
    
    Conclusion
    
        Because silver carp are likely to spread from their current 
    established range to new waterbodies in the United States; are likely 
    to compete with native species for food and habitat; are likely to have 
    negative impacts on humans; are known to hybridize with bighead carp, a 
    nonnative species also established in the United States; and because it 
    would be difficult to eradicate, reduce large populations, or recover 
    ecosystems disturbed by the species, the Service finds silver carp to 
    be injurious to the interests of human beings and the wildlife and 
    wildlife resources of the United States.
    
    Factors That Contribute to Injuriousness for Largescale Silver Carp
    
    Potential Introduction and Spread
    
        To our knowledge, the largescale silver carp has not been imported 
    into the United States. Its growth rate is greater than that of silver 
    carp, and the species reaches sexual maturity sooner than silver carp. 
    In culture situations, introduced silver carp hybridized with 
    largescale silver carp. The hybrids did not grow as quickly as 
    largescale silver carp but exceeded the growth rate of silver carp. 
    Largescale silver carp x silver carp hybrids were introduced in 
    Kazakhstan where they became established. The climate of Kazakhstan is 
    temperate; thus, largescale silver carp x silver carp hybrids are more 
    cold-tolerant than pure largescale silver carp. The faster growth rate 
    of these hybrids than pure silver carp and the increased palatability 
    of largescale silver carp compared to silver carp may conceivably 
    stimulate interest in culturing either the hybrids or pure largescale 
    silver carp in the United States. Because hybrids can tolerate 
    temperate climates, they have the potential to be cultured in many 
    southern States. Culture of pure largescale silver carp would probably 
    require subtropical/tropical conditions.
        Escape from containment, as has happened with silver carp, would 
    provide a pathway for release of largescale silver carp into natural
    
    [[Page 52312]]
    
    waters. Should this fish or its hybrids be released into natural 
    waters, connected waterways would become a secondary pathway for 
    spread. Because of the morphological similarity between this species 
    and silver carp, stock contamination of silver carp by largescale 
    silver carp is possible if imported from regions with populations of H. 
    harmandi. Another possible introduction pathway, should largescale 
    silver carp or their hybrids be imported for culture, would be sale of 
    live individuals in food fish markets.
        Likelihood of spread of largescale silver carp, should they be 
    introduced, would be high in subtropical/tropical waters of the United 
    States, but only where river flows are sufficient to support spawning. 
    Hybrid largescale silver carp x silver carp, however, would have high 
    potential to live in much of the temperate United States. Because 
    largescale silver carp can occupy reservoirs, they could also live in 
    lakes. The same is likely true for hybrids. Young largescale silver 
    carp or any hybrids captured by anglers for use as live bait would be a 
    pathway that could lead to numerous future introductions of these 
    species.
    
    Hybrids
    
        Hybridization with native fishes is not believed to be possible. 
    Largescale silver carp can hybridize with silver carp and possibly 
    bighead carp, both of which are present in U.S. waters. Hybrids of 
    largescale silver carp are known to have survived and became 
    established in Kazakhstan at a latitude of approximately 45 [deg]N, a 
    latitude that parallels the border between New York State and Ontario, 
    Canada. Therefore, it can be assumed that these hybrids would be 
    capable of surviving and probably establishing throughout much of the 
    United States where suitable waters exist.
    
    Potential Effects on Native Species
    
        Largescale silver carp consume primarily planktonic food sources. 
    It is unknown if largescale silver carp feed more heavily on 
    phytoplankton than zooplankton, but their hybrids with silver carp 
    would likely show a preference for phytoplankton. Largescale silver 
    carp and hybrids are highly likely to compete for food with other 
    planktivorous native fishes and with post-larvae and early juveniles of 
    most native fishes should they become established in the United States.
        Fishes most likely to be affected are those species whose diet is 
    predominantly plankton including paddlefish (Polyodon spathula), native 
    to the Mississippi River Basin and Gulf of Mexico river drainages from 
    east Texas to Alabama, buffalos (Ictiobus spp.), or shads (Dorosoma 
    spp.). Given that these fish may already be competing with bighead and 
    silver carps in some areas, the presence of largescale silver carp 
    would increase food competition and increase the threat of negative 
    impacts to native species.
        Potential for direct predation and injury of drifting fertilized 
    eggs and larvae of fishes exists. Mussels are also filter feeders but 
    live partly or totally buried in the substrate; they would be less 
    likely to be affected by filter-feeding largescale silver carp or their 
    hybrids. Largescale silver carp feed in the water column at night. 
    Nevertheless, changes in the fish community structure caused by 
    largescale silver carp or hybrids would likely have adverse effects on 
    abundance and availability of host fishes required for mussel 
    reproduction.
        There are other possible, but less likely, effects that will 
    cascade through any aquatic ecosystem with an established population of 
    largescale silver carp or their hybrids. Nutrient levels are a concern 
    because there is evidence of overloading of nutrients in waters into 
    which silver carp have been introduced, and the same may apply to 
    largescale silver carp or their hybrids.
        Habitat competition would likely be low unless populations become 
    significantly large. The potential of largescale silver and any hybrids 
    to cause habitat degradation and/or destruction is low as is possible 
    predation on native wildlife.
        Additional adverse impacts on native wildlife, wildlife resources, 
    and ecosystem balance are likely few, except for fishes. Ecosystem 
    balance would likely be modified if populations of largescale silver 
    carp or their hybrids with silver carp become large enough to dominate 
    planktivorous fish species.
        Because largescale silver carp may survive and become established 
    and compete with native fishes, there is no acceptable escape or 
    release threshold for largescale silver carp or their hybrids.
    
    Potential Pathogens
    
        The potential for largescale silver carp to transfer pathogens is 
    largely unknown. No detailed studies of disease-causing agents of 
    largescale silver carp have been found, but at least three trematode 
    parasites (Dactylogyrus harmandi, D. hypophthalmichthys, D. 
    chenthushenae) are known to infect largescale silver carp. Bighead, 
    silver, grass, and black carps are known to host the Asian carp 
    tapeworm (Bothriocephalus acheilognathi), but it is unknown whether 
    largescale silver carp host this species. Since largescale silver carp 
    are very similar to silver carp, they likely can host the Asian carp 
    tapeworm.
    
    Potential Impacts to Threatened and Endangered Wildlife
    
        Adverse effects of largescale silver carp on selected threatened 
    and endangered freshwater mussels and fishes would be expected to be 
    moderate to high. There are currently 116 fishes and 70 mussels on the 
    Federal List of Endangered and Threatened Wildlife. Based on habitat 
    requirements, it appears that 40 fishes and 25 mussels currently on the 
    endangered or threatened species list would likely be impacted by the 
    introduction and establishment of largescale silver carp. However, the 
    habitat requirements, springs and small streams, of the remaining 
    listed fishes and mussels would probably preclude any detectable 
    effects as it is unlikely that largescale silver carp or their hybrids 
    would survive in such small bodies of water.
        It is highly likely that largescale silver carp and particularly 
    their hybrids with silver carp would have adverse effects on designated 
    critical habitats of threatened and endangered species. There are 
    currently 60 species of fishes and 18 mussels with designated critical 
    habitat. At least 26 fishes and mussels with critical habitat inhabit 
    lakes or reaches of streams large enough to support hybrids of 
    largescale silver carp and silver carp. Largescale silver carp and 
    their hybrids have the potential to alter food webs and ultimately 
    alter nutrient and energy cycling in aquatic communities. The most 
    likely effect would be an alteration of fish community structure 
    through competition for food. Fishes and mussels that are determined to 
    be candidates for listing under the Endangered Species Act would 
    likewise be at risk.
        There is low likelihood that species may be placed in danger of 
    extinction as a result of the introduction or establishment of 
    largescale silver carp if only pure stock escaped and became 
    established in subtropical/tropical waters in the United States. Yet, 
    the potential exists for hybrids with silver carp to develop large 
    populations that could further imperil native fishes not currently on 
    the Federal List of Endangered and Threatened Wildlife. Large 
    populations of hybrids with silver carp would likely alter native fish 
    community structures, ultimately resulting in decline of native mussels 
    since many rely on native host fishes for reproduction. The fact that 
    hybrids have the potential to become abundant and
    
    [[Page 52313]]
    
    reach a very large size, > 1 m in length, in rivers, lakes, and 
    reservoirs, increases the probability of a negative impact on aquatic 
    ecosystems should largescale silver carp be introduced and become 
    established.
    
    Potential Control
    
        Due to the potential range of establishment of hybrid largescale 
    silver carp x silver carp in the United States, conventional control 
    methods would not be feasible. The damage to ancillary fisheries 
    resources through control measures would be substantial. Netting and 
    electrofishing might be effective in reducing local populations of 
    largescale silver carp, but they would also affect native fishes 
    present in the area where such control measures are used. Similarly, 
    use of chemical treatments would be expensive, only locally effective, 
    and would negatively affect all fishes and invertebrates. Even most 
    nonlethal methods to prevent the spread of largescale silver carp, such 
    as electrical barriers or bubble curtains, would negatively affect 
    migratory native fishes. At present, there is no method known to 
    substantially reduce populations of established fishes in U.S. 
    waterways. On the basis of presently available technology, eradication 
    would not be possible.
    
    Potential Impacts to Humans
    
        The potential impact on the health and welfare of humans from 
    largescale silver carp or any hybrids is unknown. If largescale silver 
    x silver hybrids display the jumping behavior of pure silver carp, 
    their potential to injure humans could be considerable. Impacts to 
    agriculture, horticulture or forestry from largescale silver carp or 
    hybrids are highly unlikely.
    
    Factors That Reduce or Remove Injuriousness for Largescale Silver Carp
    
    Detection and Response
    
        If largescale silver carp were introduced into U.S. waters, it is 
    unlikely that the introduction would be discovered until the numbers 
    were high enough to impact wildlife and wildlife resources. Widespread 
    surveys of waterways are not conducted to establish species' presence 
    lists. Delay in discovery would limit the ability and effectiveness to 
    rapidly respond to the introduction and prevent establishment. It is 
    unlikely that hybrid largescale silver x silver carp could be 
    eradicated from U.S. waterways, should they be introduced, unless they 
    are found in unconnected waterbodies.
    
    Control
    
        If hybrid largescale silver x silver carp were to escape and become 
    established in natural waters, management of established populations 
    would be nearly impossible both physically and fiscally. Some control 
    might be possible with massive fishing efforts using nets, but this 
    would unlikely stem range expansion. There would have to be substantial 
    commercial demand to justify the expense of such efforts.
        Chemicals or selective removal may be used to manage populations in 
    localized areas. However, selective removal of largescale silver carp 
    would be difficult because they remain in deeper waters during daylight 
    hours when such removal efforts would probably occur. If largescale 
    hybrids lack this behavior, then selective removal may be feasible in 
    specific situations. Pheromones may be a viable option to limit spread; 
    this possibility is under investigation for silver carp, and may have 
    applicability to largescale silver carp and any hybrids. However, 
    research into this control method is in early stages.
        It would be difficult to control the spread of largescale silver 
    carp or any hybrids to new locations except, perhaps, by use of 
    electric, acoustic, physical and other types of barriers. At present, 
    there is no method known to substantially reduce populations of 
    introduced fishes in U.S. waterways. On the basis of presently 
    available technology, eradication would not be possible.
        Although there is no evidence that this species has been introduced 
    or targeted for introduction into the United States, its affinities 
    with silver carp indicate that should it or its hybrids with silver 
    carp be introduced, abilities to eradicate, manage or control spread to 
    new locations would likely be low. Therefore, rehabilitation or 
    recovery of ecosystems disturbed by this species or its hybrids is 
    unlikely. Introduction of largescale silver carp or its hybrids has no 
    known potential ecological benefits.
        Because no evidence exists that largescale silver carp have been 
    imported or released into U.S. waters, triploidy or induced sterility 
    could potentially reduce or eliminate injuriousness. Nevertheless, 
    these processes are likely to be costly, time-consuming, and not 100% 
    effective. Should this species be imported, it is likely that it would 
    be placed in culture with other Asian carps including silver carp, a 
    species with which the largescale silver carp can hybridize. Although 
    the largescale silver carp is not known to hybridize with bighead carp, 
    it is feasible because hybrids between silver and bighead carps are 
    known.
    
    Recovery of Disturbed Sites
    
        Although there is no evidence that this species has been introduced 
    or targeted for introduction into the U.S., its similarities with 
    silver carp indicate that should it or its hybrids with silver carp be 
    introduced, abilities to eradicate, manage or control spread to new 
    locations would likely be low. Therefore, there would be little 
    likelihood for rehabilitation or recovery of ecosystems disturbed by 
    this species or its hybrids.
    
    Potential Pathogens
    
        The potential for largescale silver carp or largescale silver x 
    silver carp hybrids to infect native fishes with pathogens is largely 
    unknown. Should such transfers prove viable, ability and effectiveness 
    to control the spread to native fishes would be low.
    
    Potential Ecological Benefits for Introduction
    
        There are no potential ecological benefits for introduction of 
    largescale silver carp or its hybrids.
    
    Conclusion
    
        Because largescale silver carp are likely to escape or be released 
    into the wild if imported to the United States; are likely to survive, 
    become established and spread if escaped or released; are likely to 
    compete with native species for food and habitat; have been shown to 
    hybridize with silver carp, a nonnative species already established in 
    the United States; hybrids with silver carp may display jumping 
    behavior that could injure humans; and because it would be difficult to 
    prevent, eradicate, reduce large populations, control spread to new 
    locations or recover ecosystems disturbed by the species, the Service 
    finds largescale silver carp to be injurious to the interests of human 
    beings and the wildlife and wildlife resources of the United States.
    
    Required Determinations
    
    Paperwork Reduction Act (44 U.S.C. 3501 et seq.)
    
        This rule contains information collection activity for special use 
    permits. The Fish and Wildlife Service has approval from the Office of 
    Management and Budget (OMB) to collect information under OMB control 
    number 1018-0093. This approval expires June 30, 2007. The Service may 
    not conduct or sponsor, and a person is not required to respond to, a 
    collection
    
    [[Page 52314]]
    
    of information unless it displays a currently valid OMB control number.
    
    Regulatory Planning and Review
    
        (a) In accordance with the criteria in Executive Order 12866, OMB 
    has designated this rule as a significant regulatory action.
        This rule would not have an annual economic effect of $100 million 
    or more or adversely affect an economic sector, productivity, jobs, the 
    environment, or other units of government.
    Costs Incurred
    
    Silver Carp
    
        We expect this proposed rule to have minimal costs. Silver carp are 
    not cultured in the United States, nor do we believe that they are 
    imported or exported. Currently, there are some commercial fisheries 
    for silver carp in the Mississippi, Missouri, and Illinois rivers. 
    Usually, commercial fishermen are catching silver carp as bycatch, 
    which can account for up to 50 percent of the catch. Silver carp are 
    not favorable because of their jumping habits and because they are less 
    desirable by the consumer. In Missouri, many of the fishermen do not 
    primarily target Asian carp (bighead and silver carp) because the price 
    received is low ($0.10-$0.15 per pound). Instead, they fish for bighead 
    and silver carp when other species or opportunities are unavailable. 
    Many fishermen do not distinguish between bighead carp and silver carp.
        Data for the silver carp fishery is limited. While Table 1 shows 
    commercial fishery landings and value in Iowa and Illinois, we 
    recognize that there may be landings in other States as well. Compared 
    to the total commercial harvest and value, Asian carp represented 11 
    percent of landings and 6 percent of value in 2003. Because Illinois 
    does not distinguish between bighead carp and silver carp in its annual 
    report, we are unable to determine the magnitude of silver carp 
    landings for the entire area. For Iowa, silver carp represented less 
    than 1 percent of total landings.
    
                        Table 1.--2003 Commercial Fishery Landings and Value in Iowa and Illinois
    ----------------------------------------------------------------------------------------------------------------
                                                                        Illinois\1\    Iowa \2\ \3\        Total
    ----------------------------------------------------------------------------------------------------------------
    Total Commercial Harvest (lbs)..................................       6,385,473       2,242,997       8,628,470
        Asian Carp*.................................................         900,497          15,774         916,271
        Silver Carp.................................................  ..............           3,828           3,828
    Total Commercial Value ($)......................................      $1,334,467        $496,765      $1,831,232
        Asian Carp*.................................................         $99,055          $1,735        $100,790
        Silver Carp.................................................  ..............            $421            $421
    ----------------------------------------------------------------------------------------------------------------
    *Asian carp includes bighead carp and silver carp. The value for Asian carp and silver carp in Iowa is based on
      the average $0.11/lb received, which is the same as Illinois.
    \1\ Illinois Department of Natural Resources. 2005. 2003 Commercial Catch Report. Brighton, Illinois.
    \2\ Personal communication, Gene Jones, Iowa Department of Natural Resources.
    \3\ Iowa Department of Natural Resources. 2003. Fisheries Management Section 2003 Completion Reports. Des
      Moines, Iowa.
    
        The majority of the silver carp catch is sold as round weight. In 
    Illinois, fishermen can sell silver carp as long as they are not 
    transported live once the fish are taken off the water. No impacts are 
    expected to this market because silver carp are not delivered live to 
    the processor.
        The market for live silver carp is unknown. Two live silver carp 
    have been seen for sale in Toronto markets; it is unknown if live 
    silver carp are being sold in United States markets. It is possible 
    that silver carp are inadvertently shipped along with live bighead 
    carp. However, most live haulers will not haul live silver carp because 
    the fishes do not transport well. Furthermore, the consumer prefers 
    bighead carp to silver carp. Because only sales of live silver carp 
    would be regulated by this proposed rulemaking, we do not expect any 
    impacts to commercial fishermen unless they are transporting live 
    silver carp across State lines for processing. While the exact impact 
    is unknown, we expect it to be minimal.
    
    Largescale Silver Carp
    
        There is no known use for largescale silver carp in the United 
    States or import/export of the species into or from the United States. 
    We do not know of any future plans to use largescale silver carp in the 
    United States. Therefore, we do not expect the proposed rule to add 
    largescale silver carp to the list of injurious wildlife to have any 
    costs.
    Benefits Accrued
    
    Silver Carp
    
        Within several waters of the Midwest, silver carp comprise a large 
    percentage of the commercial catch as bycatch (non-target species). 
    This may be negatively impacting revenue for commercial fishermen 
    because silver carp are not as valuable as the native species that are 
    targeted. It is possible that silver carp populations would not become 
    established in new watersheds (Columbia Basin, Chesapeake Basin, and 
    Sacramento-San Joaquin Delta) with similar attributes as the 
    Mississippi River Basin as a result of this rulemaking. Silver carp are 
    likely to compete with native fish for food, causing declines in native 
    fishes in the United States, particularly those that rely heavily on 
    plankton as a food resource.
        With this proposed rule, we expect to delay and greatly decrease 
    the risk of the establishment of silver carp populations in other U.S. 
    watersheds. Thus, this proposed rule would protect native fish and the 
    recreational and commercial fisheries associated with native fish. In 
    terms of recreational fisheries, benefits would accrue due to (1) 
    consumer surplus generated from fishing native fish and (2) fishing-
    related expenditures such as food, lodging, and equipment. In terms of 
    commercial fisheries, benefits would accrue due to the ex-vessel 
    revenue from fishing native fish which are more valuable than silver 
    carp. The timeline for when these benefits would accrue depends on the 
    potential spread and impacts of silver carp. The extent of benefits to 
    recreational and commercial fisheries is also unknown.
    
    Largescale Silver Carp
    
        There have been no reports that largescale silver carp are in the 
    United States. However, native fish populations could decline if 
    largescale silver carp were to establish populations in the United 
    States. With this proposed rule, we expect to greatly reduce the risk 
    of the introduction and establishment of largescale silver carp (or any 
    hybrids) in U.S. watersheds. Thus, this proposed rule protects native 
    fish and the recreational and commercial fisheries
    
    [[Page 52315]]
    
    associated with native fish. In terms of recreational fisheries, 
    benefits would accrue due to the continued (1) consumer surplus 
    generated from fishing native fish and (2) fishing-related expenditures 
    such as food, lodging, and equipment. In terms of commercial fisheries, 
    benefits would accrue due to the continued ex-vessel revenue from 
    fishing native fish. The extent of benefits to recreational and 
    commercial fisheries is also unknown because it depends on the 
    introduction and subsequent establishment of largescale silver carp 
    populations in the United States.
        (b) This proposed rule will not create inconsistencies with other 
    Federal agencies' actions. This rule pertains only to regulations 
    promulgated by the U.S. Fish and Wildlife Service under the Lacey Act. 
    No other agencies are involved in these regulations.
        (c) This proposed rule would not materially affect entitlements, 
    grants, user fees, loan programs, or the rights and obligations of 
    their recipients. This proposed rule does not affect entitlement 
    programs. This rule is aimed at regulating the importation and movement 
    of nonindigenous species that have the potential to cause significant 
    economic and other impacts on natural resources that are the trust 
    responsibility of the Federal Government.
        (d) OMB has determined that this proposed rule raises novel legal 
    or policy issues.
    
    Regulatory Flexibility Act
    
        Under the Regulatory Flexibility Act (as amended by the Small 
    Business Regulatory Enforcement Fairness Act (SBREFA) of 1996), 
    whenever a Federal agency publishes a notice of rulemaking for any 
    proposed or final rule, it must prepare and make available for public 
    comment a regulatory flexibility analysis that describes the effect of 
    the rule on small entities (i.e., small businesses, small 
    organizations, and small government jurisdictions) (5 U.S.C. 601 et 
    seq.). However, no regulatory flexibility analysis is required if the 
    head of an agency certifies that the rule would not have a significant 
    economic impact on a substantial number of small entities. Thus, for a 
    regulatory flexibility analysis to be required, impacts must exceed a 
    threshold for ``significant impact'' and a threshold for a 
    ``substantial number of small entities.'' See 5 U.S.C. 605(b). SBREFA 
    amended the Regulatory Flexibility Act to require Federal agencies to 
    provide a statement of the factual basis for certifying that a rule 
    would not have a significant economic impact on a substantial number of 
    small entities.
        This proposed rulemaking may impact a small number of fishermen 
    selling live silver carp. The number of fishermen targeting silver carp 
    is unknown. Because the market for live silver market is also unknown, 
    we are unable to estimate the degree of impact of this rulemaking. We 
    expect this proposed rulemaking to have a minimal effect on commercial 
    fishermen selling live silver carp because many live haulers do not 
    transport live silver carp. We do not expect this rulemaking to affect 
    aquaculture because silver carp, largescale silver carp or any hybrids 
    are not being cultured in the United States at this time.
        Many small businesses within the retail trade industry (such as 
    hotels, gas stations, taxidermy shops, bait and tackle shops, etc.) may 
    benefit from continued recreational fishing without impacts from silver 
    carp, largescale silver carp, or any hybrids. Furthermore, small 
    businesses associated with commercial fishing (fishermen, wholesalers, 
    and retailers) would also benefit from continued commercial fishing 
    without impacts from silver carp, largescale silver carp, or any 
    hybrids. We do not know the extent to which these small businesses 
    would continue to benefit. However, we expect this benefit to be 
    distributed across various watersheds, and so we do not expect that the 
    rule will have a significant economic effect (benefit) on a substantial 
    number of small entities in any region or nationally.
        Therefore, we certify that this rule would not have a significant 
    economic effect on a substantial number of small entities as defined 
    under the Regulatory Flexibility Act (5 U.S.C. 601 et seq.). An 
    initial/final Regulatory Flexibility Analysis is not required. 
    Accordingly, a Small Entity Compliance Guide is not required. No 
    individual small industry within the United States will be 
    significantly affected if live silver carp or largescale silver carp 
    importation and interstate transportation are prohibited.
    
    Small Business Regulatory Enforcement Fairness Act
    
        The rule is not a major rule under U.S.C. 804(2), the Small 
    Business Regulatory Enforcement Fairness Act. This rule:
        (a) Does not have an annual effect on the economy of $100 million 
    or more. Silver carp is in limited commercial trade in the United 
    States and primarily as fillets; the largescale silver carp is not 
    known to be imported or present in the United States. Silver carp are 
    likely to devastate many native fishery resources if it continues to 
    spread in the United States. The largescale silver carp could devastate 
    many native fishery resources if it is introduced to U.S. waterways. 
    This rulemaking will protect the environment from the introduction and 
    spread of non-native species and will indirectly work to sustain the 
    economic benefits enjoyed by numerous small establishments connected 
    with recreational and commercial fishing.
        (b) Will not cause a major increase in costs or prices for 
    consumers, individual industries, Federal, State, or local government 
    agencies, or geographic regions.
        (c) Does not have significant adverse effects on competition, 
    employment, investment, productivity, innovation, or the ability of 
    U.S.-based enterprises to compete with foreign-based enterprises.
    
    Unfunded Mandates Reform Act
    
        In accordance with the Unfunded Mandates Reform Act (2 U.S.C. 1501 
    et seq.), this rule does not impose an unfunded mandate on State, 
    local, or tribal governments or the private sector of more than $100 
    million per year. The rule would not prohibit intrastate transport or 
    any use of silver carp or largescale silver carp within State 
    boundaries. Any regulations adhering to the use of silver carp or 
    largescale silver carp within individual States will be the 
    responsibility of each State. The rule does not have a significant or 
    unique effect on State, local, or tribal governments or the private 
    sector. A statement containing the information required by the Unfunded 
    Mandates Reform Act is not required.
    
    Takings
    
        In accordance with Executive Order 12630, the rule does not have 
    significant takings implications. A takings implication assessment is 
    not required. This rule would not impose significant requirements or 
    limitations on private property use.
    
    Federalism
    
        In accordance with Executive Order 13132, the rule does not have 
    significant Federalism effects. A Federalism assessment is not 
    required. This rule would not have substantial direct effects on 
    States, in the relationship between the Federal Government and the 
    States, or on the distribution of power and responsibilities among the 
    various levels of government. Therefore, in accordance with Executive 
    Order 13132, we determine that this rule does not have sufficient 
    Federalism implications to warrant the preparation of a Federalism 
    Assessment.
    
    [[Page 52316]]
    
    Civil Justice Reform
    
        In accordance with Executive Order 12988, the Office of the 
    Solicitor has determined that the rule does not unduly burden the 
    judicial system and meets the requirements of sections 3(a) and 3(b)(2) 
    of the Executive Order. The rule has been reviewed to eliminate 
    drafting errors and ambiguity, was written to minimize litigation, 
    provides a clear legal standard for affected conduct rather than a 
    general standard, and promotes simplification and burden reduction.
    
    National Environmental Policy Act
    
        We have reviewed this rule in accordance with the criteria of the 
    National Environmental Policy Act and the Departmental Manual in 516 
    DM. This action is being taken to protect the natural resources of the 
    United States. Draft environmental assessments have been prepared for 
    each species and are available for review by written request (see 
    ADDRESSES section) or at our Web page at http://contaminants.fws.gov/
    Issues/InvasiveSpecies.cfm.
        Adding silver carp and largescale silver carp to the list of 
    injurious wildlife is intended to prevent their further introduction 
    and establishment into natural waters of the United States in order to 
    protect native fishes, the survival and welfare of wildlife and 
    wildlife resources and the health and welfare of humans. Not listing 
    silver carp as injurious may allow for an expansion of their use to 
    States where they are not already found, thus increasing the risk of 
    their escape and establishment in new areas due to accidental release 
    and, perhaps, intentional release, which would likely threaten native 
    fish, wildlife, and humans. Silver carp are established throughout much 
    of the Mississippi River Basin. Releases of silver carp into natural 
    waters of the United States are likely to occur again and the species 
    is likely to become established in additional U.S. waterways, 
    threatening native fish populations, wildlife, and wildlife resources 
    dependent on phytoplankton, zooplankton, bacteria, and detritus, and 
    impacting human health.
        Largescale silver carp are not known to be in the United States, 
    but if introduced to natural waters, they would likely impact the 
    welfare and survival of native fish and wildlife, as well as the health 
    and welfare of humans. In addition, largescale silver carp are visually 
    similar to silver carp and can readily hybridize with silver carp, so 
    they would be difficult to distinguish from silver carp.
    
    Government-to-Government Relationship With Tribes
    
        In accordance with the President's memorandum of April 29, 1994, 
    ``Government-to-Government Relations with Native American Tribal 
    Governments'' (59 FR 22951), Executive Order 13175, and 512 DM 2, we 
    have evaluated potential effects on Federally recognized Indian tribes 
    and have determined that there are no potential effects. This rule 
    involves the importation and interstate movement of all forms of live 
    silver carp, largescale silver carp, gametes, eggs, and hybrids. We are 
    unaware of trade in these species by Tribes.
    
    Effects on Energy
    
        On May 18, 2001, the President issued Executive Order 13211 on 
    regulations that significantly affect energy supply, distribution, and 
    use. Executive Order 13211 requires agencies to prepare Statements of 
    Energy Effects when undertaking certain actions. This rule is not 
    expected to affect energy supplies, distribution, and use. Therefore, 
    this action is a not a significant energy action and no Statement of 
    Energy Effects is required.
    
    Clarity of the Rule
    
        Executive Order 12866 requires each agency to write regulations 
    that are easy to understand. We invite your comments on how to make 
    this rule easier to understand including answers to questions such as 
    the following: (1) Are the requirements in this rule clearly stated? 
    (2) Does the rule contain technical language or jargon that interferes 
    with the clarity? (3) Does the format of the rule (grouping and order 
    of sections, use of headings, paragraphing, etc.) aid or reduce its 
    clarity? (4) Is the description of the rule in the SUPPLEMENTARY 
    INFORMATION section of the preamble helpful in understanding the rule? 
    What else could we do to make the rule easier to understand?
        Send a copy of any written comments about how we could make this 
    rule easier to understand to: Office of Regulatory Affairs, Department 
    of the Interior, Room 7229, 1849 C Street, NW., Washington, DC 20240. 
    You may also e-mail comments to Exsec@ios.doi.gov.
    
    References Cited
    
        A complete list of all references used in this rulemaking is 
    available upon request from the Branch of Invasive Species (see the FOR 
    FURTHER INFORMATION CONTACT section).
    
    Authority
    
        The Service is issuing this proposed rule under the authority of 
    the Lacey Act (18 U.S.C. 42).
    
    List of Subjects in 50 CFR Part 16
    
        Fish, Imports, Reporting and recordkeeping requirements, 
    Transportation, Wildlife.
    
        For the reasons discussed in the preamble, the U.S. Fish and 
    Wildlife Service proposes to amend part 16, subchapter B of chapter I, 
    title 50 of the Code of Federal Regulations, as follows:
    
    PART 16--[AMENDED]
    
        1. The authority citation for part 16 continues to read as follows:
    
        Authority: 18 U.S.C. 42.
    
        2. Amend Sec.  16.13 as follows:
        a. By removing the word ``and'' at the end of paragraph 
    (a)(2)(iii);
        b. By removing the period at the end of paragraph (a)(2)(iv)(BB) 
    and adding in its place ``; and''; and
        c. By adding a new paragraph (a)(2)(v) to read as set forth below.
    
    
    Sec.  16.13  Importation of live or dead fish, mollusks, and 
    crustaceans, or their eggs.
    
        (a) * * *
        (2) * * *
        (v) Live fish, gametes, viable eggs, or hybrids of the species 
    silver carp, Hypophthalmichthys molitrix, or largescale silver carp, 
    Hypophthalmichthys harmandi.
    * * * * *
    
        Dated: July 14, 2006.
    Matt Hogan,
    Acting Assistant Secretary for Fish and Wildlife and Parks.
    [FR Doc. 06-7416 Filed 9-1-06; 8:45 am]
    BILLING CODE 4310-55-P
    
    
    

Document Information

Published:
09/05/2006
Department:
Fish and Wildlife Service
Entry Type:
Proposed Rule
Action:
Proposed rule; notice of availability of environmental documents.
Document Number:
06-7416
Dates:
Comments must be submitted on or before November 6, 2006.
Pages:
52305-52316 (12 pages)
RINs:
1018-AT29: Injurious Wildlife; Silver Carp (Hypophthalmichthys Molitrix)
RIN Links:
https://www.federalregister.gov/regulations/1018-AT29/injurious-wildlife-silver-carp-hypophthalmichthys-molitrix-
PDF File:
06-7416.pdf
CFR: (1)
50 CFR 16.13