Reducing sea turtle bycatch in trawl nets: a history of NMFS turtle excluder device (TED) research.
Jenkins, Lekelia D.
Introduction
Sea turtle, Chelonioidea, bycatch became a Federal management issue
for the U.S. southeast shrimp trawl fishery in the 1970's after the
listing of all seven sea turtle species under the Endangered Species Act (ESA). Although five species of sea turtle may encounter shrimp trawls
in U.S. waters, those of most concern are the loggerhead, Caretta
caretta, and Kemp's ridley, Lepidochelys kempii.
The loggerhead is the sea turtle most often captured by U.S. shrimp
trawls. At the beginning of the National Marine Fisheries Service
(NMFS), NOAA, research program, the Kemp's ridley was considered
the most endangered sea turtle, because it nests on only one beach,
Rancho Nuevo, Mexico, and at one time had a nesting female population of
only 300 individuals (National Research Council, 1990; Lutz and Musick,
1997; Lutz et al., 2003). NMFS and the U.S Fish and Wildlife Service
(FWS) share responsibility for protecting sea turtles, with NMFS being
responsible for protection at sea and the FWS being responsible for
protection on land, such as protecting nesting females, eggs, and
hatchlings.
To conserve sea turtles, people have taken measures to protect
them, particularly as hatchlings and adults. Beach monitors relocate and
place protective barriers around nests. Municipalities have encouraged
or mandated that residents regulate light use and beach traffic. With
limited success, some conservation and management groups have attempted
captive breeding, artificial imprinting of hatchlings on new nesting
beaches, and headstarting (the captive rearing and release of turtles
once they are beyond the size of most natural predation) (National
Research Council, 1990; Lutz and Musick, 1997; Lutz et al., 2003).
However, studies on the reproductive value of different life stages
of loggerhead sea turtles reveal that recovery of these populations
cannot occur with protection of eggs and hatchlings alone. The most
reproductively valuable lifestages are subadults and adults, which are
the lifestages most impacted as bycatch (Crouse et al., 1987). Thus is
it critical to reduce sea turtle mortality in shrimp trawls.
Shrimp and sea turtles often share the same aquatic
habitat--including coastal waters along the southeastern United
States--so shrimpers have likely encountered sea turtles since the
beginning of the U.S. shrimp trawl fishery in 1913. This fishery
involves pulling a net behind a boat. With advances in fishing
technology, such as more powerful engines and winches to haul the net,
shrimpers began using larger nets and pulling them for longer periods of
time. Presently, shrimpers typically tow their nets underwater for 2-3 h
at a time. Sea turtles encountering a net might attempt to swim away
from it and are often entrained. If unable to surface to breathe,
turtles can drown during the long tow time (National Research Council,
1990).
To address the problem of sea turtle bycatch in trawls, it is
essential to understand the fishing process and the fishing gear used.
During the shrimp fishing process the outriggers, which are stored
upright, are lowered over the water (Fig. 1). Attached to each outrigger are one or two nets typically 30-50 ft in headrope length (Fig. 2). Each
net is equipped with a pair of large rectangular wooden doors that are
3-10 ft long. When lowered into the water, they slide on their edge
along the seabed. The doors are rigged with chains to pull at an angle
so that the force of the water pushes them apart and spreads the net
open between them.
For each door, attached between the door and ahead of the net is a
tickler chain. This looped length of chain drags along the seabed,
startling shrimp off the bottom so that they can be captured by the net.
A leadline, also known as a footrope, is the weighted line that extends
between the doors along the bottom of the net and helps to keep the net
close to the seabed. The corkline, floatline, or headrope is attached to
the top of the net and is fixed with varying numbers of floats. The
floats and weights help determine the shape of the net in the water.
[FIGURE 1 OMITTED]
The shape of the net is also affected by how it is sewn together,
and about six different types of net designs are used in the U.S. shrimp
trawl fishery. The seams of the net, where the top net is sewn to the
bottom net, are called the wings. The entrance of the net is called the
mouth. The net tapers back from the mouth to form a funnel, and the
narrow part of the funnel is referred to as the throat. At the back of
the net is the net bag or codend, where the captured shrimp are
collected. Attached to the codend is the lazy line that allows the back
of the net to be swung onboard for emptying (Maril, 1983; 1995; Maiolo,
2004).
This paper chronicles the research that the NMFS began 36 years ago
on reducing mortality of sea turtles in shrimp trawls. As a result of
the combined efforts of NMFS and many stakeholders--including domestic
and foreign fishermen, environmentalists, Sea Grant agents, and
government agencies--this extended community invented and continues to
improve the turtle excluder device (TED). The notable contributions of
members of this community, including shrimpers and Sea Grant agents, far
exceeds the capacity of one paper, so this article focuses on the
contributions of NMFS to this effort, much of which occurred at the NMFS
Mississippi Laboratories in Pascagoula (Fig. 3). Specifically, it
summarizes the impetus for and results of major NMFS developments and
little known events in the TED research and discusses how these
influenced the course of subsequent NMFS research.
History
Barrier Devices
The effort to invent a device to reduce sea turtle bycatch in
trawls began in 1976, but it was linked to events that took place in
1973 and 1974. During those years, while observing the operation of
various experimental trawl nets, NMFS serendipitously recorded three sea
turtles encountering the trawl net. One of these trawls was a separator
trawl, a type of net that has a large mesh panel that directed large
objects out of a hole in the net while allowing small objects like
shrimp to proceed into the net bag (Fig. 4). The turtle became entangled by its scutes and flippers and became trapped in the exclusion chute
(Ogren et al., 1977). The video of these encounters laid the foundation
for the initial course of research NMFS pursued in 1976, when NMFS began
researching gear modifications that would reduce sea turtle mortality in
shrimp trawls. At the beginning of its research program, NMFS consulted
with sea turtle specialists Archie Carr and Larry Ogren. Based on the
video, the turtle specialists were concerned that if a sea turtle
entered the trawl net, its marginal scutes might become entangled in the
mesh. For this reason, NMFS initially pursued a barrier panel to prevent
the capture of sea turtles by barring their entrance to the net.
[FIGURE 2 OMITTED]
Fieldwork on the gear began in 1978, with limited collaboration
with the Southeastern Fisheries Association and the Texas Shrimp
Association to facilitate the use of commercial fishing vessels to
conduct sea turtle population studies and to test gear. NMFS developed
two panel designs. One design was called the "forward
barrier," which consisted of a panel of webbing attached to and
sloping forward from the headrope down to a bottom-line that ran between
the trawl doors. This design can be likened in appearance and function
to the cowcatchers placed on locomotives. Unfortunately, turtles were
able to go under the bottom-line and into the trawl. Also, some fishing
conditions altered the trawl configurations, causing the bottom-line of
the barrier to touch the seafloor, stimulating shrimp ahead of the trawl
and allowing their escape. In 1978, NMFS abandoned the forward barrier,
because it only reduced turtle capture by 30% and had a large (38-53%)
shrimp loss.
In 1979, gear specialists modified the forward barrier design,
resulting in the "reverse barrier" (Fig. 5). In this design,
the webbing panel attached to the headrope and sloped backwards from it
to the footrope. The best reverse barrier design reduced turtle capture
by 79% and shrimp capture by 15-30%. Unfortunately, the reverse barrier
increased the drag on the trawl, causing it to lift up like the wing of
a plane and resulted in the loss of shrimp. NMFS attempted to correct
this problem by adding weight to the footrope, but the shrimpers on the
cooperative vessels testing the gear objected to this as it made the
trawl more difficult to use. NMFS tried various other rigging techniques
to correct the problems with the reverse barrier with limited success.
In 1981, NMFS abandoned the reverse barrier device because of its
high rate of shrimp loss and complex design. The device also became
easily clogged with debris that caused the trawl to become deformed,
resulting in the capture of turtles and the loss of shrimp. In addition,
the device required custom fitting to the net, thus greatly restricting
subsequent alterations to the trawl dimensions. For example, in order to
fish effectively for different species of shrimp, shrimpers commonly
alter the height of the trawl mouth with floats, but the custom fitted
reverse barrier would inhibit such alterations.
The NMFS TED
In 1980, the University of Georgia, Marine Extension Service (UGA MAREX) sent NMFS photos of a "jellyball shooter" and suggested
a similar approach could work for excluding turtles. The jellyball
shooter had been used for decades, especially by shrimpers in South
Carolina and Georgia, when cannonball jellyfish, Stomolophus meleagris,
are so dense that shrimping could not otherwise occur. The jellyball
shooter consists of a grid that is placed in the neck of the trawl to
block large objects from entering the net bag and directs them out of a
hole cut in the net.
[FIGURE 3 OMITTED]
[FIGURE 4 OMITTED]
[FIGURE 5 OMITTED]
Based on these photographs, John Watson, then head of the NMFS Sea
Turtle Excluder Trawl Project, and Eddie Toomer, a contract vessel
captain from Winter Haven, Fla., independently and simultaneously
conceived of placing the grid within a frame. Watson constructed his
version from fragile PVC and Toomer constructed his from heavy steel.
Though Toomer's original model was too heavy and Watson's too
fragile to be practical, NMFS drew ideas from both to apply to a new
design. NMFS called the resulting prototype the turtle excluder device
(TED) (Fig. 6).
The original prototype resulting from these conceptual models was
designed to exclude large loggerhead turtles. The frame was slightly
more than 1 cu yd and weighed about 97 lb. A grid was slanted
45[degrees] between a front and back oval hoop. The grid bars were
spaced six inches apart and the device had a 3-ft square door on the
bottom. The NMFS TED excluded 89% of the turtles that entered the net
and had no statistically significant loss of shrimp. NMFS developed a
top-opening TED as a result of divers' observations that turtles
had difficulty escaping out of the bottom-opening door and attempted to
escape upwards. This top-opening TED increased the turtle exclusion rate
to 97%.
To reduce shrimp loss, NMFS developed a device called an
accelerator funnel. This tube of webbing functioned by accelerating the
water through the TED, thus carrying more shrimp into the codend. The
result was a 7% increase in shrimp catch in comparison to a trawl
without a TED.
One of the research objectives for 1981 was to determine if there
was a difference in shrimp catch with TED's on major shrimping
grounds. After testing the NMFS TED against a standard trawl net in
South Carolina, Georgia, Florida, Mississippi, Alabama, Louisiana, and
Texas, NMFS determined there was either no statistical difference or an
increase in shrimp retention when using TED's.
In 1982, hoping to increase TED adoption, NMFS reduced the size of
the NMFS TED to exactly 1 cu yd. Observer data on size of the most
commonly caught turtle species suggested that the TED could be smaller
with no reduction in turtle release efficiency. NMFS reduced the size of
the TED, so it would fit the smaller twin trawls common in the Gulf of
Mexico fishery. Also, the size reduction allowed for easier handling and
storage. During testing, this TED had a statistically insignificant
increase in shrimp catch.
[FIGURE 6 OMITTED]
In 1983, to make the TED even more appealing to shrimpers, NMFS
modified not only the device but also its name. NMFS officially renamed
the "turtle excluder device" the "trawling efficiency
device" in an attempt to market its ability to exclude trash that
could damage the net and to reduce finfish bycatch with a hummer wire
that vibrated, encouraging fish to exit the net.
NMFS also explored the use of alternative lighter materials for TED
construction. With the help of the Naval Surface Weapons Center's
Plastics Laboratory, NMFS created two new prototypes: a plastic NMFS TED
and a fiberglass NMFS TED. The plastic NMFS TED was too flexible and
could not withstand minimum loads. The fiberglass NMFS TED was stable
but not durable, so NMFS modified it to increase durability. NMFS also
created a collapsible fiberglass TED. Testing showed that these
prototypes were not strong enough for commercial use.
NMFS also explored the use of aluminum TED's but determined
that they would be more costly than those made from galvanized steel.
The aluminum TED was also too light and was unstable when towed on the
surface, causing the TED to roll, twisting the codend. In 1983, NMFS
also began work on the collapsible NMFS TED. Both ends of the deflector
bars had hinges that allowed this TED to fold for easy space-saving
storage. During fishing, the water tension forced the TED into an open
configuration.
In 1984, NMFS further modified the NMFS TED to improve the its
handling. NMFS decided to make the TED even smaller by reducing the door
width from 36 to 30 inches and the frame width from 52 to 42 inches.
This reduction would still allow 95% of turtles to escape. The remaining
5% represented mostly large adult loggerheads.
In 1985, NMFS developed a smaller TED for use in inshore waters. A
prototype half-scale TED became easily fouled and was not large enough
to reduce bycatch. A two-thirds scale TED, however, reduced bycatch by
50% without any statistically significant shrimp loss. This TED became
known as the Mini-TED.
During the next 2 yr, NMFS conducted field tests of the NMFS TED on
board cooperative vessels in every southeast U.S. state with a
commercial fleet. These states were North Carolina, South Carolina,
Georgia, Florida, Louisiana, Alabama, and Texas. Mississippi had been
the site of previous field tests, as it is the home of NMFS laboratory
that developed the NMFS TED. As a result of the field tests, NMFS
further modified the NMFS TED, most notably by removing a shock cord
that was used to hold the accelerator funnel in place. The shock cord
could become lodged between the front carapace and neck of sea turtles
as they passed through the accelerator funnel, inhibiting their ability
to exit through the TED.
The late 1980's marked the end of in-depth research to modify
and improve the NMFS TED. Around 1990 NMFS focused anew on TED
invention, and these efforts produced the Taylor Soft TED and the Super
Shooter TED, which will be discussed later. What immediately followed
the NMFS TED era was a period of increased NMFS cooperation with the
fishing industry to test and improve shrimper-invented TED's.
During this time the protocols for testing TED's also evolved.
TED Testing Protocols
Part of the foundation of the effort to invent a device to reduce
sea turtle bycatch was the development of a process by which to test
these devices. The process by which TED's were evaluated changed
significantly over the first 15 years of research. Initially, NMFS
evaluated TED's using a comparative trawl test design in which one
net had a TED and the other net on the same vessel did not. NMFS
consistently used this test design through 1985. While this allowed NMFS
to evaluate the shrimp retention of TED's under various fishing
conditions in numerous states, it was not well suited to evaluate sea
turtle exclusion. Because researchers did not know the density of sea
turtles in an area, they could not determine whether a TED had
effectively excluded sea turtles or whether the trawl did not encounter
any turtles.
In 1986 the UGA MAREX conducted a demonstration test at Cape
Canaveral, Fla., that led to the development of a testing protocol that
compared the number of wild turtles caught in a net that had a TED with
the number of wild turtles caught in a control net that did not have a
TED. The Cape Canaveral ship channel was known to have a very high
density of sea turtles, so testing in this area almost insured that both
the control net and the net with the TED would encounter sea turtles.
From 1986 to 1989, NMFS used tests in the Cape Canaveral ship
channel to evaluate industry-developed TED's and certify them for
commercial use. For a TED to become certified for commercial use it must
exclude at least 97% of the turtles that enter the trawl (NOAA, 1990a).
This figure is based on the exclusion rate obtainable with the NMFS TED.
There were several problems with this protocol including the unexplained
death of a couple of turtles, the inability to document the number of
turtles entering each net, and the vague definition of a "captured
turtle." With the latter problem, it was often difficult to
determine if a turtle discovered in the net at the end of a test had
entered the net just before the test ended and would have exited through
the TED if given more time or if that turtle was truly ensnared in the
net.
NMFS abandoned this testing protocol in 1989, because there was no
longer a high concentration of turtles in the Cape Canaveral channel.
UGA MAREX continued to survey the turtle populations in this and other
potential testing sites with dense turtle populations. By the time the
Cape Canaveral turtle populations had recovered, however, NMFS was
committed to a different testing protocol, so testing in Cape Canaveral
has only occurred a few times since then. In 1988, NMFS used a new
testing protocol to evaluate several TED's, and this alternative
protocol evolved into the small-turtle TED testing protocol.
NMFS developed a small-turtle TED testing protocol for conducting
tests using small sea turtles in the clear waters off Panama City, Fla.,
that it has used consistently since 1990. The protocol consisted of
seven components (1):
1) Each day, the researchers randomly selected two TED's and
tested each 10 times. This was repeated on a second day, so that they
tested each TED a total of 20 times.
2) Turtles were kept in holding pens until transferred to the test
vessel, where they were held in a fiberglass tank of seawater.
3) Each turtle was delivered to divers by placing it in a Herculite
bag and clipping it to a steel messenger wire that was attached to the
trawl.
4) Three divers monitored the test. Diver number one received the
turtle and released it under and behind the trawl headrope.
5) Diver number two recorded a) the time elapsed from the
turtle's release into the trawl to the turtle's encounter with
the TED, b) time elapsed from the turtle's encounter with the TED
to the turtle's escape or removal from the TED, c) turtle activity
code, and d) water clarity code.
6) Diver number three recorded each test using an underwater video
camera.
7) Once the turtle encountered the TED, the divers initiated a
2-min time limit. If after this time the turtle had not escaped, a diver
removed it. This limit allowed sufficient time to evaluate TED
performance, limited diver time, and insured minimal stress to the
turtle.
Based on an idea originally proposed by UGA MAREX, the protocol
involved the release of captive-reared juvenile green turtles into the
net and the filming of their progress through the net. The turtles had
to escape within a certain time or it was considered captured. After the
first year of testing, NMFS increased the testing time limit from 2 to 5
min. If the turtle remained in the net after the time limit, NMFS
declared it a capture. An even longer time limit was proposed but blood
chemistry tests revealed that this would increase the turtle's
stress level.
Over the years, NMFS has improved the small-turtle testing
protocol. To evaluate the small-turtle TED testing protocol, in 1989
NMFS convened a review panel that determined the protocol was limited in
that: 1) captive turtles behaved differently than wild caught turtles,
2) captive turtles were not as physically fit as wild turtles, and 3)
test turtles could not be introduced to the net in the same way a wild
turtle would be. In response, NMFS conditioned the turtles in ponds to
make them more physically fit.
During the first few years of the small-turtle testing, many of the
turtles were positively buoyant. NMFS addressed the buoyancy problem by
improving the turtle's conditioning, minimizing their stress, and
noting for consideration during analysis when turtles displayed buoyancy
problems during the test. Eventually, NMFS partially addressed the
effect of release position on the test by randomizing the release
location of the turtle into the net. Although this testing protocol
remains controversial, NMFS believes that the test is precautionary,
because a TED should exclude a sea turtle no matter its condition,
making any behavioral abnormalities, such as lack of an escape response,
inconsequential.
After the first use of the small-turtle testing protocol, in 1988,
NMFS began to use Kemp's ridley sea turtles, Lepidochelys kempii,
because they were easier to acquire from captive-rearing facilities and
were the species of greatest concern. When environmental groups
protested the use of highly endangered Kemp's ridley sea turtles,
in 1994 NMFS began to use the threatened loggerhead sea turtle, Caretta
caretta.
Even though the small-turtle TED testing protocol has improved, the
option remained available to certify a TED using the Cape Canaveral
protocol and was used occasionally for a number of years. In 1990, NMFS
developed the Modified Cape Canaveral Testing Protocol (NOAA, 1990b).
Instead of a paired trawl test design in which one trawl had an
experimental TED and the other did not have a TED, under the modified
protocol both nets had an experimental TED. Each of the trawls were also
mounted with an underwater camera that allowed NMFS technicians to
monitor the wild turtles that entered the net. With the modified
protocol, the turtle is given 10 minutes to escape. If the turtle does
not escape within 10 minutes, the turtle is considered captured, the
trawl is retrieved, and the turtle is released. It is important to note
that only one type of test protocol could be given to a TED, so failure
of either test meant failure of the TED. No further testing was allowed
unless the TED was modified.
To pass the certification test with any of the protocols, the
candidate TED had to exclude 97% of turtles with a 90% confidence
interval, according to the standard set by the control TED during that
round of testing. Initially, NMFS used the NMFS TED as a control,
because it was the most extensively tested TED and was 97% effective in
excluding turtles. Using the NMFS TED as a control addressed the
variations between the Cape Canaveral and small-turtle testing
protocols, because the NMFS TED had a known exclusion rate. Any
variation in this rate could be viewed as an artifact of the
small-turtle testing protocol and was adjusted for in the statistical
analysis.
In 1996, NMFS began using the Super Shooter TED as the control TED.
NMFS calculated the probability of Type I and Type II errors in order to
insure that the sample size of the test was large enough that a
statistical analysis would be powerful enough to correctly reject or
accept a TED. Based on this calculation, NMFS eventually increased the
number of turtles released into the candidate TED from 20 to 25.
NMFS invited TED inventors and manufacturers to participate in the
testing. NMFS allowed the inventor to install the TED, view preliminary
video of the TED's underwater performance, and make adjustments if
necessary. If the TED was failing or had failed the test, NMFS or the
inventors could modify the TED and retest during the same test session
if time allowed.
NMFS gave copies of the testing videos to the TED inventors and
manufacturers and invited them to attend the TED Testing Review
Committee meeting. This committee was comprised of Sea Grant agents,
shrimp fishing industry representatives, fishing gear specialists, and
sea turtle experts. The committee reviewed the video of each test and
could score the test as a capture or escape or they could choose to
discard the test. In 1995, however, NMFS abandoned use of the review
panel and the process of scoring the tests, because the criteria for
making classifications were too vague.
Testing of Industry-developed TED's
While NMFS was developing the NMFS TED, members of the shrimp
fishing industry had begun to develop different types of TED's, and
several of these inventors worked closely with Sea Grant to evaluate the
devices. Following the successful demonstration in Cape Canaveral in
1986, in 1987 NMFS joined this effort and began field tests of some of
these devices. That year marked a turning point in the NMFS TED program,
as most of the effort in the following years focused on evaluating,
testing, and modifying TED's that members of the shrimp fishing
industry designed. Three designs in particular made substantial early
advances in TED design. These were the Georgia Jumper, invented by
Sinkey Boone of Darien, Ga.; the Morrison Soft TED, invented by Sonny
Morrison of McClellanville, S.C.; and the Anthony Weedless TED, invented
by Ernest Anthony of Lacombe, La.
The Georgia Jumper was the first frameless TED; the oval shaped
metal frame was sewn directly into the net at a 45[degrees] angle (Fig.
7). Beginning in 1987, NMFS frequently evaluated modifications of the
Georgia Jumper. Much of this work focused on how the device was
configured in the net; the grid itself has remained largely unchanged.
NMFS certified the Georgia Jumper for commercial use in 1987.
[FIGURE 7 OMITTED]
The Morrison Soft TED was the first TED to use flexible mesh
webbing (as opposed to a rigid grid) as the separator panel in the TED
(Fig. 8). Unlike a grid that is placed in the throat of the trawl net,
the soft TED panel begins in the mouth of the trawl and tapers back,
forming a mesh ramp to the escape opening. NMFS evaluations and
modifications of this TED centered on refining it so that it would
perform consistently across styles of nets and fishing environments.
NMFS certified it for commercial use in 1987. The Parker Soft TED, which
is a variation of the Morrison Soft TED, is currently the only soft TED
that remains certified (Fig. 9).
The Anthony Weedless TED was the first TED design to solve the
problem of TED's becoming clogged with vegetation and similar
debris (Fig. 10). It consisted of a frameless grid, the bars of which
did not attach to the bottom of the grid, allowing debris to enter the
codend rather than clog the TED. In comparison to other TED's, NMFS
certified this TED by proxy to its similarity to the Georgia Jumper with
limited evaluations, focusing on shrimp retention. Subsequent to its
certification, NMFS analyzed the impact of an improperly installed
Anthony Weedless TED on sea turtle escapement.
In addition to the innovative Georgia Jumper, Morrison Soft, and
Anthony Weedless TED's, NMFS evaluated, tested, or modified over 30
different fishing industry-invented TED designs. This number does not
include the many modifications and version of each design nor the over
15 designs that were proposed but never tested.
The fishing industry and other stakeholders attacked the sea turtle
bycatch problem from all angles. Most of the ideas were variations on
barrier devices, hard TED's, and soft TED's. Others were more
novel, such as the Sonic Excluder. This device, invented by Daniel
Leveque of Lake Charles, La., Michael Tritico of Longville, La., and
Martin Lenhardt of the Virginia Institute of Marine Science, used sound
waves to ward turtles away from an approaching trawl. Another novel
device, the Turtle Detection Device, invented by Ricky Bourg of Dulac,
La., consisted of a mechanical trigger located at the codend attachment
point that released a tethered float from the trawl when a sea turtle or
large object was encountered (Fig. 11).
The shrimp fishing industry also proposed a number of TED
accessories. One such device was the Pierce Shrimp Broom invented by
Webster Pierce and Mitch Serigne of Louisiana (Fig. 12). This broom of
plastic fibers was attached to a TED frame so as to prevent shrimp from
exiting through the escape opening. During testing in 1995, this device
excluded all turtles. Other notable accessories were the Darien Roller
and Georgetown Roller (Fig. 13). These similar devices consisted of a
PVC pipe attached to the bottom of the TED frame. NMFS certified these
devices for use to prevent chaffing and tearing of the net.
[FIGURE 8 OMITTED]
The years of cooperation between NMFS and the fishing industry
resulted in TED's that were increasingly efficient in releasing
turtles and more effective in retaining shrimp. The designs reflected
the collective scientific, engineering, and fishing knowledge of NMFS
personnel, Sea grant agents, and industry collaborators. However, there
are two major points of difference between NMFS and industry in the
approach to TED design: whether turtles were released more effectively
from top or bottom-opening TED's and whether soft TED's could
effectively and consistently exclude turtles.
Bottom-opening vs. Top-opening TED's
To determine if TED's performed better as top opening or
bottom opening, NMFS evaluated four different TED designs (the NMFS TED,
the Georgia Jumper, the Anthony Weedless TED, and the Super Shooter TED)
in 1995 and 1996 in a total of 14 different fishing configurations using
captive-reared sea turtles. All the top-opening TED designs had equal or
better turtle exclusion rates than their bottom opening counterpart.
With the exception of one configuration of bottom-opening Super Shooter
TED, all the top-opening TED's had shorter escape times than their
bottom opening counterparts. In fact, the escape times of top-opening
TED's (55-85 sec) were often about half that of bottom-opening
TED's (64-177 sec). (2)
[FIGURE 9 OMITTED]
[FIGURE 10 OMITTED]
[FIGURE 11 OMITTED]
Soft TED Testing
In response to growing concerns that soft TED's were catching
high numbers of sea turtles, NMFS evaluated soft TED's almost
exclusively from 1996 through 1998. In 1996, NMFS obtained five Andrews
Soft TED's from three different net shops to evaluate the
consistency of installation and turtle exclusion. Of the five
TED's, four apparently had installation problems that resulted in
areas of slack webbing in the TED (Fig. 14). Small turtles released near
the wings of the TED had significantly higher relative capture rates
(70%) than those released in the center position (0%). (3)
NMFS then convened a soft TED advisory panel in March 1997 to
develop technical solutions to the operational problems with soft
TED's. Panel members included soft TED designers and shrimp
industry representatives. The industry panel developed ideas for soft
TED modifications and submitted them to NMFS for testing and diver
evaluation. Of 18 soft TED designs evaluated during the project, seven
were variations of the Andrews Soft TED and eleven were variations of
the Morrison Soft TED.
NMFS identified design problems that prevented the escape of
juvenile turtles in 15 of the 18 soft TED's. Of the 18 designs, one
successfully passed the test protocol by excluding 22 of 25 turtles. The
successful design was the Morrison 4 x8 inch Soft TED (later known as
the Parker Soft TED), constructed with 8 inch webbing in the main panel
and 4 inch webbing in the wings and at the exit hole apex. In addition,
the researchers developed and conducted preliminary tests of an Andrews
Soft TED with a combination of 6, 3 and 5 inch webbing panel. (4)
Later that year, NMFS continued its evaluation of soft TED's,
focusing on further evaluations of the Morrison 4x8 inch Soft TED
installation in various trawl types and sizes and continued testing of
Andrews TED designs. The Morrison 4x8 inch Soft TED was installed in the
following trawl types: 1) 2-seam balloon with and without a bib (i.e., a
section of webbing extending forward from the net's top panel and
connecting to a third central bridle); 2) 4-seam balloon with and
without a bib; 3) mongoose; and 4) straight wing flat. On the trawl
designs with bibs (which helps to maintain optimal spread of the mouth
of the trawl), NMFS evaluated TED panel configuration at different
center wire adjustments. The Andrews Soft TED evaluation and testing
resulted in the development of three designs which successfully passed
the test protocol. These designs were the Andrews 4 x 8 inch Soft TED,
Andrews 6 x 3 x 5 inch Soft TED, and Andrews 5 inch Soft TED. (5)
Following the 1997 tests, members of the Soft TED Advisory Panel
evaluated shrimp retention of the Andrews 4x8 inch Soft TED aboard a
commercial shrimp trawler and estimated a 20% loss of shrimp in
comparison to a hard TED. Based on these findings, a subsequent meeting
of the Soft TED Advisory Panel recommended that NMFS take no further
action to certify any of the Andrews Soft TED designs which passed the
field tests in 1997. The panel did, however, recommend that NMFS focus
the 1998 TED testing on modifications to improve the shrimp retention of
the Andrews Soft TED. In 1998, NMFS certified the Parker Soft TED; this
was the only certification awarded of all the soft TED designs explored
during these 3 yr of intensive research. (6)
[FIGURE 12 OMITTED]
[FIGURE 13 OMITTED]
Taylor Soft TED
In addition to the NMFS TED, NMFS scientists and gear specialists
developed other distinct TED designs. One of these was the Taylor Soft
TED. Charles "Wendy" Taylor, an NMFS gear specialist and
former commercial net builder invented the Taylor Soft TED (Fig. 15).
The need for this device evolved from industry's desire for a
smaller mesh size soft TED with a flap and the need for a soft TED
suitable for small trawls. The TED was a modification of the Morrison
Soft TED. It was a top-opening TED made from a triangular piece of 6
inch mesh polyethylene webbing that formed a shortened panel and had a
flap weighted with a chain over the exit hole. There were two designs of
the Taylor Soft TED: in one design the panel ends in a single mesh (an
apex) and in the other design the panel is squared-off.
[FIGURE 14 OMITTED]
During testing in 1991, diver observation revealed that the panel
of the Taylor Soft TED was too far aft, preventing lateral expansion so
the meshes were partially closed. This resulted in the blockage of the
codend entrance and the misdirection of water flow. Taylor corrected the
problem by moving the TED forward 5 ft and increasing the hanging ratio
of the mesh. Following this adjustment, the TED successfully excluded
100% of turtles placed in the net with no statistically significant loss
of shrimp.
Super Shooter TED
Another TED that NMFS had a significant role in inventing was the
Super Shooter TED. Noah Saunders of TED, Inc., in Biloxi, Miss., began
developing the Super Shooter TED around 1989 in cooperation with NMFS
personnel, particularly Dale Stevens and John Watson. A modification of
the Georgia Jumper, the aluminum rod bars of this TED were bent at a
45[degrees] angle just above the bottom of the frame to prevent clogging
by debris. This design differs from the Georgia Jumper in that it does
not have a crossbrace because its greater width and larger diameter
material adds stability.
This TED was manufactured in three sizes. The large size Super
Shooter TED consists of a 42x51 inch frame spaced 4 inch apart. The Mini
Super Shooter (also known as the small size or mid size Super Shooter
TED) (Fig. 16) had a 33x41 inch frame with bars spaced 3.5 inch apart.
The Inshore Super Shooter TED had a 32x35 inch frame with bars spaced
3.75 inch apart. During field tests the Super Shooter TED had no
statistically significant loss of shrimp and excluded 100% of turtles
placed in the net.
Cooperative Work with Mexico
In addition to inventing the NMFS TED and working with industry to
test and modify shrimper-invented TED's, NMFS also cooperated with
the governments of several foreign nations in developing new TED
designs. One of the first such relationships was with Mexico. In 1992,
NMFS and the Instituto Nacional de La Pesca (INP), the primary agency
for scientific and technological advice on fisheries development and
assessment in Mexico, conducted comparative trawl tests of the Super
Shooter and Anthony Weedless TED's in Mexico's Gulf waters.
[FIGURE 15 OMITTED]
In 1994, NMFS observed and suggested modifications to two
TED's designed by the INP. The most unique of the two designs was
the INP 3-bag TED (Fig. 17), which had an oval grid and three codends.
Two baffles, one in each wing, led to two outer codends. Behind the
baffles was the TED leading to the center codend. The Mexican gear
specialists explained that shrimp travel along the trawl wings and so
will enter the baffles before reaching the TED, thus reducing loss of
shrimp.
Based on initial observations, the baffles were modified by lacing
nylon line along the perimeter to keep them open. During subsequent
tests, the TED caught 3 of 5 turtles; the captured yearling turtles
became entangled in one of the baffles. NMFS suggested the TED be
modified by placing a barrier over the baffles and adding side hoops to
the TED frame to assure that the outer codends remain open.
The second design, the FEDINP TED was more traditional in
appearance. This was a top-opening TED with a 31.5 x 50.5 inch
rectangular grid made of 1.5 inch aluminum tubing. The exit hole had
nylon rope laced to the perimeter and was covered by a 1 inch stretched
mesh flap that extended 23.5 inch beyond the frame. During testing, this
TED successfully excluded all turtles.
Leatherback TED's
The early 2000's brought sweeping changes to TED regulations;
this resulted in a new focus for the TED research program. The
regulatory changes were prompted in part by a study published in 2002
that showed that as many as 47% of stranded (i.e., recovered carcasses)
loggerhead turtles and 7% of stranded green turtles had body depths that
exceeded the minimum legal TED opening height (Epperly and Teas, 2002).
The study indicated that these large sea turtles might be drowning in
trawl nets.
[FIGURE 16 OMITTED]
[FIGURE 17 OMITTED]
On 21 Feb. 2003, in response to the mounting scientific evidence
that sea turtle conservation measures were inadequate for protecting
large turtles, NMFS enacted several changes to the TED regulations
(NOAA, 2003). Notably, these new regulations required all offshore
single-grid hard TED's to have a grid with a minimum measurement of
32 x 32 inch. They also required that all offshore TED's be
equipped with either a 6 inch overhang double-cover flap (Fig. 18),
which has an escape opening of at least 56 x 20 inch, or the 71 inch
standard leatherback modification (Fig. 19), which has an escape opening
with a minimum of 71 inch straightline stretched mesh. These regulatory
changes effectively decertified many of the previously certified
TED's. This caused NMFS' TED research to shift focus into
modification of previously certified TED's, such as the Georgia
Jumper, whose opening required modification to meet the larger escape
opening requirement.
Flat Bar TED
To handle the rigors of deepwater fishing, offshore shrimpers began
using larger TED's made of sturdy aluminum or steel pipe to prevent
bending of the frame. But some shrimpers noted that there was an
increased loss of shrimp in these TED's in comparison to TED's
made from thinner materials. In 2005, using a flume tank facility, NMFS
gear specialists determined that the minimal grid surface area of a TED
made from aluminum flat bar led to almost no water flow diversion when
compared to an aluminum pipe TED. Less water flow diversion leads to
more shrimp remaining in the net rather than flowing out the TED escape
opening.
The Flat Bar TED (Fig. 20) was also equal to a pipe TED in frame
strength. The Gulf and South Atlantic Fisheries Foundation, Inc.,
completed a study in 2007 and found that the aluminum Flat Bar TED had
statistically significant increases in shrimp catch rates when compared
to an aluminum pipe TED. (7) In 2006, a Flat Bar TED with deflector bars
constructed from aluminum flat bar stock, 1/4 inch in thickness and 1
1/2 inch in depth, successfully passed the small turtle test protocol by
excluding 24 of 25 turtles (NOAA, 2010).
[FIGURE 18 OMITTED]
Double Shoot TED
Debris clogging TED's is a chief concern for shrimpers,
especially after hurricanes. NMFS gear specialists tackled this concern
by creating the Double Shoot TED (Fig. 21). This TED has two openings.
One opening on the bottom discharges heavy debris and another opening on
the top allows escape of turtles. The TED also has a fixed fishing angle
of the TED deflector bars through a dual-angle design that resembles a
less than symbol (<). In 2010, this Double Shoot TED passed the
small-turtle TED testing protocol by excluding all 25 turtles. A
paired-trawl test with a standard top-opening grid TED showed that the
Double Shoot TED reduced finfish bycatch by 11.6% with a 5.5% reduction
in shrimp catch (USDOC, 2011).
TED's in Other Trawl Fisheries
In 2007 NMFS published an Advance Notice of Proposed Rulemaking to
require TED's in other fisheries (NOAA, 2007). Then, in 2009, NMFS
published a notice of intent to prepare an environmental impact
statement in preparation for possible regulatory changes that would
require the use of TED's in trawl fisheries with documented sea
turtle interaction, such as those for knobbed whelk, Busycon carica, and
Atlantic sea scallops, Placopecten magellanicus (NOAA, 2009). In
anticipation of this potential regulatory change, NMFS began testing
TED's for these fisheries. Much of the initial work was based on a
device called the flounder TED (Fig. 22). This TED features large holes
at the bottom of the TED that will allow the passage of flounder into
the codend but will still block the passage of sea turtles. Since 1992,
all boats using bottom trawls to catch summer flounder, Paralichthys
dentatus, at certain times and areas off Virginia and North Carolina
have been required to use TED's in their nets (NOAA, 1992). In
2010, NMFS approved the use of a Modified Flounder TED (Fig. 23), which
consisted of two grid frames that allowed the TED to be rolled onto a
net reel. The Northeast Fisheries Science Center and industry developed
this TED to improve catch retention by reducing clogging (NOAA, 2010).
[FIGURE 19 OMITTED]
[FIGURE 20 OMITTED]
Because whelk and flounder are both larger bottom dwelling
organisms, modifying the flounder TED was a starting point for
developing a TED appropriate for whelk. The whelk fishery occurs
primarily in Georgia and South Carolina and arose as an alternative
fishery during times when the shrimp fishery was closed. The whelk TED
was developed in cooperation with the Georgia Department of Natural
Resources (GADNR) and the UGA MAREX.
[FIGURE 21 OMITTED]
[FIGURE 22 OMITTED]
[FIGURE 23 OMITTED]
NMFS evaluated these potential TED designs in 2000-01. During the
2000 TED testing, the whelk TED excluded all 25 turtles placed in the
TED, but fishermen thought that the frame was too large for their
trawls. In 2001, NMFS tested the Whelk TED II (Fig. 24). The height of
this TED had been reduced from 52 to 36 inch and the outer frame was
constructed from 2 inch flat bar. The flat bar allowed whelk to roll
through the bottom openings of the TED more efficiently than a pipe
frame.
The flat bar, however, caused small turtles to be trapped on the
lip of the bar, over which they could not maneuver. NMFS gear
specialists recommended that the top section of the outer frame near the
escape opening should be replaced with pipe rather than flat bar.
Following this modification, the whelk TED II passed the NMFS
small-turtle testing protocol, capturing only 1 of 24 turtles.
Currently, GADNR requires the use of this TED in the whelk trawl fishery
in Georgia waters.
[FIGURE 24 OMITTED]
Sea turtle bycatch has also been documented in the Atlantic sea
scallop trawl fisheries. In 2005 and 2006, NMFS tested the feasibility
of using a whelk TED modified with chaffing gear in the sea scallop
trawl fishery. This TED design passed the NMFS testing criteria, and
NMFS is now considering requiring the use of TED's in the
Mid-Atlantic sea scallop trawl fishery. Also, the Atlantic sea scallop
dredge fishery has worked with NMFS to develop a turtle excluding
dredge.
The flynet fishery is another trawl fishery with documented sea
turtle bycatch. Flynets are high-profile trawls of 80-120 ft width and
are fished just above the seafloor. The flynet fishery is a multispecies
fishery that operates along the east coast from New York to North
Carolina. Depending on fishing location and depth, target species
include Atlantic croaker, Micropogonias undulatus; weakfish, Cynoscion
regalis; Atlantic mackerel, Scomber scombrus; bluefish, Pomatomus
saltatrix; squid, Teuthida; black sea bass, Centropristis striata; scup,
Stenotomus chrysops; and other finfishes.
NMFS began developing a TED for this fishery in 1999. Initially,
two of these TED's passed the NMFS small turtle TED testing
protocol. Both TED's had folding, hinged frames to facilitate
winding around the vessel net reel, but the industry was concerned that
this design could cause excessive loss of fish.
In response to this concern, NMFS developed a bifolding TED called
the Staggered Bar Flynet TED (Fig. 25). The staggered bar configuration
was designed to let more fish into the net bag by reducing the number of
fish that are deflected through the exit hole of the TED. After
correcting the installation position of the TED so that the offset bars
faced into the water flow, this TED excluded all 25 turtles that were
placed in the net.
Since about 2009, NMFS returned to exploring a flexible grid design
for the flynet fishery. They have had considerable success with a TED
constructed of aluminum flat bar with a center section made of stainless
steel cable, which allows it to flex for storage around the net reel.
Versions of this device have successfully passed the turtle test
protocol and have reduced bycatch of spiny dogfish, Squalus acanthias,
by 40% and clearnose skates, Raja eglanteria, by 63% without significant
loss of target catch (USDOC, 2010, 2011). If NMFS decides to require the
use of a TED in the flynet fishery, it might initially only require
TED's for vessels targeting weakfish and croaker.
Conclusion
In this article I have chronicled the contributions of NMFS to the
invention and development of TED's. I summarized the impetus for
and results of major events, including the initial attempts to develop a
barrier device; development of the NMFS invented and the NMFS modified
TED's, such as the NMFS TED, Taylor Soft TED, and Super Shooter
TED; and testing and development of industry-invented TED's, such
as the Georgia Jumper, Morrison Soft TED, and Anthony Weedless TED. I
have also recorded details of little known events in the TED research,
such as the testing of novel TED designs invented by gear specialists
from the Mexican government and alerting devices, such as the Sonic TED
and Turtle Detection Device.
[FIGURE 25 OMITTED]
This summary of 36 years of history, shows how the NMFS program to
reduce mortality of sea turtles in trawls has grown. The program has
progressed from reactive research in response to the regulatory change
of the listing of sea turtles under the Endangered Species Act to
anticipatory research in preparation for potential TED requirements in
additional trawl fisheries. As a result of efforts of NMFS and numerous
stakeholders, many trawl fisheries around the world now use a version of
the turtle excluder device (TED). I hope that this record of TED
research will further aid the development of TED's for appropriate
trawl fisheries worldwide.
Acknowledgements
I would like to acknowledge my Ph.D. advisors Larry Crowder and
Michael Orbach for their advice and support over the course of my
dissertation research at Duke University. I appreciate the assistance of
Lee Benaka, John Mitchell, and the many key informants who provided
information for this research. I am grateful to the two anonymous
reviewers for their editorial suggestions and to TWIG for their
encouragement. I would also like to thank the National Science
Foundation and the Oak Foundation for funding this research.
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Lekelia D. Jenkins is with the School of Marine and Environmental
Affairs, University of Washington, 3707 Brooklyn Ave. N.E., Seattle, WA
98105 (
[email protected]). Mention of trade names or commercial firms does
not imply endorsement by the National Marine Fisheries Service, NOAA.