Recovery Plan for the Northwest Atlantic Population 

of the 

Loggerhead Sea Turtle 

(Caretta caretta) 

Second Revision 

 

 U.S. Department of Commerce 

National Oceanic and Atmospheric Administration 

 NATIONAL MARINE FISHERIES SERVICE 

 U.S. Department of the Interior 

U.S. FISH AND WILDLIFE SERVICE

Recovery Plan for the Northwest Atlantic Population 

of the 

Loggerhead Sea Turtle 

(Caretta caretta) 

Second Revision 

Original Approved: September 19,1984 

First Revision Approved: December 26,1991 

Approved: 

Date: 

Date: 

James W. Balsiger, S.D., Acting Assistant Administrator for Fisheries 

National Oceanic and Atmospheric Administration 

National Marine Fisheries Service 

Silver Spring, Maryland 

DEC - 8 2008 

Approved: 

Sam D. Hamilton, Regio a1 irector, Southeast Region 

U.S. Fish and Wildlife &ke 

Atlanta, Georgia 

DEC 3 1 2088 
ii 

PREFACE 

The Endangered Species Act of 1973, as amended (16 USC 1531 et seq.) (ESA), establishes 

policies and procedures for identifying, listing, and protecting species of wildlife that are 

endangered or threatened with extinction. The purposes of the ESA are “to provide a means 

whereby the ecosystems upon which endangered species and threatened species depend may be 

conserved, [and] to provide a program for the conservation of such endangered species and 

threatened species...” The ESA defines an “endangered species” as “any species which is in 

danger of extinction throughout all or a significant portion of its range.” A “threatened species” 

is defined as “any species which is likely to become an endangered species within the 

foreseeable future throughout all or a significant portion of its range.” 

The Secretaries of the Department of the Interior and the Department of Commerce are 

responsible for administering the ESA’s provisions as they apply to the loggerhead turtle. Dayto-day management authority for endangered and threatened species under the Departments’ 

jurisdictions has been delegated to the U.S. Fish and Wildlife Service (FWS) and the National 

Marine Fisheries Service (NMFS), respectively. FWS and NMFS (collectively referred to as the 

Services) share Federal jurisdiction for sea turtles, with FWS having lead responsibility on 

nesting beaches and NMFS having lead responsibility in the marine environment. 

To help identify and guide species recovery needs, section 4(f) of the ESA directs the Secretaries 

to develop and implement recovery plans for listed species. Such plans are to include: (1) a 

description of site-specific management actions necessary to conserve the species or populations; 

(2) objective, measurable criteria which, when met, will allow the species or populations to be 

removed from the endangered and threatened species list; and (3) estimates of the time and 

funding required to achieve the plan’s goals. Section 4 of the ESA and regulations (50 CFR Part 

424) promulgated to implement its listing provisions also set forth the procedures for 

reclassifying and delisting species on the Federal lists. A species can be delisted if the Secretary 

of the Interior and/or the Secretary of Commerce determines that the species no longer meets the 

endangered or threatened status based upon the following five factors listed in section 4(a)(1) of 

the ESA: 

(1) the present or threatened destruction, modification, or curtailment of its habitat or range; 

(2) overutilization for commercial, recreational, scientific, or educational purposes; 

(3) disease or predation; 

(4) the inadequacy of existing regulatory mechanisms; and 

(5) other natural or manmade factors affecting its continued existence. 

Further, a species may be delisted, according to 50 CFR Part 424.11(d), if the best scientific and 

commercial data available substantiate that the species or population is neither endangered nor 

threatened for one of the following reasons: (1) extinction, (2) recovery, or (3) original data for 

classification of the species were in error. 

NMFS approved the initial recovery plan for the loggerhead on September 19, 1984. This initial 

plan was a multi-species plan for all six species of sea turtles occurring in the U.S. On 

December 26, 1991, NMFS and FWS approved a separate recovery plan for the U.S. population 
iii 

of the loggerhead, focusing on the Atlantic. A separate plan for U.S. Pacific populations of the 

loggerhead was approved in 1998. In 2001, NMFS and FWS initiated the process to revise the 

1991 plan for the loggerhead. An Atlantic Loggerhead Recovery Team, consisting of species 

experts, was established to draft this revision. 

Since approval of the first revised plan in 1991, significant research has been accomplished and 

important recovery activities have been undertaken. As a result, we have a greater knowledge of 

the species and its status. This second revision of the recovery plan for the Atlantic loggerhead 

addresses current threats and needs, highlights conservation accomplishments that have been 

undertaken since the species was listed, and specifically addresses the planning requirements of 

the ESA. 
iv 

DISCLAIMER

Recovery plans delineate such reasonable actions as may be necessary, based upon the best 

scientific and commercial data available, for the conservation and survival of listed species. 

Plans are published by the U.S. Fish and Wildlife Service and the National Marine Fisheries 

Service, sometimes prepared with the assistance of recovery teams, contractors, state agencies, 

and others. Recovery plans do not necessarily represent the views, official positions, or approval 

of any individuals or agencies involved in the plan formulation, other than the Services. They 

represent the official position of the Services only after they have been signed by the U.S. Fish 

and Wildlife Service Regional Director and/or National Marine Fisheries Service Assistant 

Administrator. Recovery plans are guidance and planning documents only; identification of an 

action to be implemented by any public or private party does not create a legal obligation beyond 

existing legal requirements. Nothing in this plan should be construed as a commitment or 

requirement that any Federal agency obligate or pay funds in any one fiscal year in excess of 

appropriations made by Congress for that fiscal year in contravention of the Anti-Deficiency Act, 

31 U.S.C. 1341, or any other law or regulation. Approved recovery plans are subject to 

modification as dictated by new findings, changes in species status, and the completion of 

recovery actions. 

LITERATURE CITATION SHOULD READ AS FOLLOWS: 

National Marine Fisheries Service and U.S. Fish and Wildlife Service. 2008. Recovery 

Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle (Caretta 

caretta), Second Revision. National Marine Fisheries Service, Silver Spring, MD. 

ADDITIONAL COPIES MAY BE OBTAINED FROM: 

National Marine Fisheries Service 

Office of Protected Resources 

1315 East-West Highway, 13th Floor 

Silver Spring, Maryland 20910 

This recovery plan can be downloaded from: 

National Marine Fisheries Service’s Office of Protected Resources website: 

http://www.nmfs.noaa.gov/pr/recovery/plans.htm#turtles

 

U.S. Fish and Wildlife Service's Jacksonville Field Office's website: 

http://www.fws.gov/northflorida

Cover photos by Blair E. Witherington. 
v 

RECOVERY TEAM

The Services gratefully acknowledge the commitment and efforts of the members of the 

Recovery Team for the Northwest Atlantic population of the loggerhead sea turtle in the 

development of this revised recovery plan. 

Alan B. Bolten, Ph.D. 

(Team Leader) 

Archie Carr Center for Sea Turtle Research 

University of Florida 

 

Larry B. Crowder, Ph.D. 

Duke University Marine Laboratory 

Mark G. Dodd

 Georgia Department of Natural Resources 

Sandra L. MacPherson

U.S. Fish and Wildlife Service 

John A. Musick, Ph.D.

The Virginia Institute of Marine Science 

College of William and Mary 

 Barbara A. Schroeder 

National Marine Fisheries Service 

Blair E. Witherington, Ph.D.

Florida Fish and Wildlife Conservation Commission 

Kristy J. Long 

(Assistant to the Team)

National Marine Fisheries Service 

ACKNOWLEDGMENTS

The Recovery Team and the Services gratefully acknowledge the key input and assistance of the 

following individuals during the revision of the recovery plan: Selina Heppell (Oregon State 

University) and Melissa Snover (National Marine Fisheries Service). 

Additional thanks go to the following individuals for their technical assistance during the 

preparation of the recovery plan: Gloria Bell (U.S. Fish and Wildlife Service), Kelly Bibb (U.S. 

Fish and Wildlife Service), Karen Bjorndal (Archie Carr Center for Sea Turtle Research, 

University of Florida), Benjamin Bolker (Department of Zoology, University of Florida), 

Michael Bresette (Quantum Resources, Inc.), Therese Conant (National Marine Fisheries 

Service), Debby Crouse (U.S. Fish and Wildlife Service), Peter Eliazar (Archie Carr Center for 

Sea Turtle Research, University of Florida), Allen Foley (Florida Fish and Wildlife Conservation 

Commission), Matthew Godfrey (North Carolina Wildlife Resources Commission), DuBose 

Griffin (South Carolina Department of Natural Resources), Paul Kubilis (IFAS Statistics 

Department, University of Florida), Ann Marie Lauritsen (U.S. Fish and Wildlife Service), Kate 

Mansfield (The Virginia Institute of Marine Science, College of William and Mary), Anne 

Meylan (Florida Fish and Wildlife Conservation Commission), Sally Murphy (South Carolina 

Department of Natural Resources), Susan Pultz (National Marine Fisheries Service), Jeffrey 

Seminoff (National Marine Fisheries Service), James Spotila (Drexel University), Wendy Teas 

(National Marine Fisheries Service), and Chuck Underwood (U.S. Fish and Wildlife Service).
vi 

EXECUTIVE SUMMARY

The loggerhead sea turtle (Caretta caretta) was listed as threatened throughout its range on July 

28, 1978, under the Endangered Species Act of 1973, as amended (ESA), and has received 

Federal protection since that time. Therefore, the entire species is the listed entity. However, in 

this recovery plan, we have identified recovery units for the Northwest Atlantic loggerhead 

population. Establishing recovery units is a useful tool for species occurring across wide ranges 

with multiple populations, varying ecological pressures, or different threats in different parts of 

their range. By using this approach, we were able to set recovery goals for each unit and will be 

able to measure their contribution toward recovery of the Northwest Atlantic loggerhead 

population. 

At this time, the Northwest Atlantic loggerhead population is only a “potential” distinct 

population segment (DPS) and cannot be considered for delisting separately from the listed 

entity (i.e., the entire species) until it meets both the recovery criteria for each recovery unit and 

has completed a formal DPS evaluation and designation, which would involve a proposed 

rulemaking, public review and comment, and a final rulemaking. (In 1996, FWS and NMFS 

published a joint policy defining the phrase “distinct population segment” (FWS and NMFS 

1996, 61 FR 4722). Three elements are considered in a decision regarding the listing, delisting, 

or reclassification of a DPS as endangered or threatened under the ESA: discreteness of the 

population segment in relation to the remainder of the species, significance of the population 

segment to the species, and conservation status. In early 2008, NMFS established a Loggerhead 

Biological Review Team to assess the loggerhead population structure globally to determine 

whether DPSs exist and, if so, to assess the status of each DPS. The Loggerhead Biological 

Review Team will review and synthesize information, render expert opinion, and prepare a 

written report (status review) by mid-2009. With this in mind, we have identified recovery units 

for the Northwest Atlantic loggerhead population as follows. 

RECOVERY UNITS: The Recovery Team designated the following five recovery units for the 

Northwest Atlantic population of the loggerhead. The first four recovery units represent nesting 

assemblages in the southeast U.S. The boundaries of these four recovery units were delineated 

based on geographic isolation and geopolitical boundaries. The fifth recovery unit includes all 

other nesting assemblages within the Northwest Atlantic. 

Northern Recovery Unit: The Northern Recovery Unit is defined as loggerheads 

originating from nesting beaches from the Florida-Georgia border through southern 

Virginia (the northern extent of the nesting range). 

Peninsular Florida Recovery Unit: The Peninsular Florida Recovery Unit is defined as 

loggerheads originating from nesting beaches from the Florida-Georgia border through 

Pinellas County on the west coast of Florida, excluding the islands west of Key West, 

Florida. 

Dry Tortugas Recovery Unit: The Dry Tortugas Recovery Unit is defined as loggerheads 

originating from nesting beaches throughout the islands located west of Key West, Florida, 

because these islands are geographically separated from other recovery units. 
vii 

Northern Gulf of Mexico Recovery Unit: The Northern Gulf of Mexico Recovery Unit 

is defined as loggerheads originating from nesting beaches from Franklin County on the 

northwest Gulf coast of Florida through Texas (the western extent of U.S. nesting range). 

Greater Caribbean Recovery Unit: The Greater Caribbean Recovery Unit is composed 

of loggerheads originating from all other nesting assemblages within the Greater Caribbean 

(Mexico through French Guiana, The Bahamas, Lesser Antilles, and Greater Antilles). 

CURRENT STATUS: The Recovery Team evaluated the status and trends of the five identified 

recovery units. 

Northern Recovery Unit: Annual nest totals for this recovery unit averaged 5,215 nests 

from 1989-2008. The loggerhead nesting trend from daily beach surveys showed a 

significant decline of 1.3% annually since 1983. Nest totals from aerial surveys conducted 

by SCDNR showed a 1.9% annual decline in nesting in South Carolina since 1980. 

Overall, there is strong statistical evidence to suggest the Northern Recovery Unit has 

experienced a long-term decline.

Peninsular Florida Recovery Unit: Annual nest totals for this recovery unit averaged 

64,513 nests from 1989-2007. An analysis of index nesting beach survey data has shown a 

decline in nesting. Results of the analysis indicated that there has been a decrease of 26% 

over the 20-year period from 1989-2008 and a 41% decline since 1998. The mean annual 

rate of decline for the 20-year period was 1.6%. 

Dry Tortugas Recovery Unit: Annual nest totals for this recovery unit averaged 246 

nests from 1995-2004 (surveys not conducted in 2002). The nesting trend data for the Dry 

Tortugas Recovery Unit are from beaches that are not part of the Florida index nesting 

beach survey program but are part of the statewide nesting beach survey program. There 

are 9 years of data for this recovery unit. A simple linear regression accounting for 

temporal autocorrelation revealed no trend in nesting numbers. Because of the annual 

variability in nest totals, a longer time series is needed to detect a trend. 

Northern Gulf of Mexico Recovery Unit: Annual nest totals for this recovery unit 

averaged 906 nests from 1995-2007. Evaluation of long-term nesting trends for the 

Northern Gulf of Mexico Recovery Unit is difficult because of changed and expanded 

beach coverage. However, there are 12 years of Florida index nesting beach survey data 

for the Northern Gulf of Mexico Recovery Unit. A log-linear regression showed a 

significant declining trend of 4.7% annually. 

Greater Caribbean Recovery Unit: Statistically valid analyses of long-term nesting 

trends for the entire Greater Caribbean Recovery Unit are not available because there are 

few long-term standardized nesting surveys representative of the region. Additionally, 

changing survey effort at monitored beaches and scattered and low-level nesting by 

loggerheads at many locations currently precludes comprehensive analyses. The most 

complete data are from Quintana Roo, Yucatán, Mexico, where an increasing trend was 
viii 

reported over a 15-year period from 1987-2001. However, nesting since 2001 has declined 

and the previously reported increasing trend appears not to have been sustained. Other 

smaller nesting populations have experienced declines over the past few decades. 

THREATS TO RECOVERY: The Loggerhead Recovery Team conducted a detailed analysis of 

threats to assist in prioritizing recovery actions. The highest priority threats, adjusted for relative 

reproductive values for each life stage/ecosystem, include bottom trawl, pelagic longline, 

demersal longline, and demersal large mesh gillnet fisheries; legal and illegal harvest; vessel 

strikes; beach armoring; beach erosion; marine debris ingestion; oil pollution; light pollution; and 

predation by native and exotic species.

RECOVERY GOAL: To ensure that each recovery unit meets its Recovery Criteria alleviating 

threats to the species so that protections under the ESA are no longer necessary. 

RECOVERY OBJECTIVES: The highly migratory behavior of loggerheads makes them shared 

resources among many nations. Therefore, conservation efforts for loggerhead populations in 

one country may be jeopardized by activities in another. Protecting loggerheads on U.S. nesting 

beaches and in U.S. waters alone, therefore, is not sufficient to ensure the continued existence of 

the species. Although this revised recovery plan focuses on activities to recover the loggerhead 

in the U.S., it also recognizes and encourages cooperative efforts with other nations to ensure the 

survival and recovery of the species throughout the Northwest Atlantic. The Loggerhead 

Recovery Team identified the following recovery objectives: 

1. Ensure that the number of nests in each recovery unit is increasing and that this 

increase corresponds to an increase in the number of nesting females. 

2. Ensure the in-water abundance of juveniles in both neritic and oceanic habitats is 

increasing and is increasing at a greater rate than strandings of similar age classes. 

3. Manage sufficient nesting beach habitat to ensure successful nesting. 

4. Manage sufficient feeding, migratory, and internesting marine habitats to ensure 

successful growth and reproduction. 

5. Eliminate legal harvest. 

6. Implement scientifically based nest management plans. 

7. Minimize nest predation. 

8. Recognize and respond to mass/unusual mortality or disease events appropriately. 

9. Develop and implement local, state, Federal, and international legislation to ensure 

long-term protection of loggerheads and their terrestrial and marine habitats. 

10. Minimize bycatch in domestic and international commercial and artisanal fisheries. 

11. Minimize trophic changes from fishery harvest and habitat alteration. 

12. Minimize marine debris ingestion and entanglement. 

13. Minimize vessel strike mortality. 
ix 

DEMOGRAPHIC RECOVERY CRITERIA: 

1. Number of Nests and Number of Nesting Females

a. Northern Recovery Unit

(1) There is statistical confidence (95%) that the annual rate of increase over a 

generation time of 50 years is 2% or greater resulting in a total annual number 

of nests of 14,000 or greater for this recovery unit (approximate distribution of 

nests is NC=14% [2,000], SC=66% [9,200], and GA=20% [2,800]). 

(2) This increase in number of nests must be a result of corresponding increases 

in number of nesting females (estimated from nests, clutch frequency, and 

remigration interval). 

b. Peninsular Florida Recovery Unit

(1) There is statistical confidence (95%) that the annual rate of increase over a 

generation time of 50 years is statistically detectable (1%) resulting in a total 

annual number of nests of 106,100 or greater for this recovery unit. 

(2) This increase in number of nests must be a result of corresponding increases 

in number of nesting females (estimated from nests, clutch frequency, and 

remigration interval). 

c. Dry Tortugas Recovery Unit

(1) There is statistical confidence (95%) that the annual rate of increase over a 

generation time of 50 years is 3% or greater resulting in a total annual number 

of nests of 1,100 or greater for this recovery unit. 

(2) This increase in number of nests must be a result of corresponding increases 

in number of nesting females (estimated from nests, clutch frequency, and 

remigration interval). 

d. Northern Gulf of Mexico Recovery Unit

(1) There is statistical confidence (95%) that the annual rate of increase over a 

generation time of 50 years is 3% or greater resulting in a total annual number 

of nests of 4,000 or greater for this recovery unit (approximate distribution of 

nests (2002-2007) is FL= 92% [3,700] and AL=8% [300]). 

(2) This increase in number of nests must be a result of corresponding increases 

in number of nesting females (estimated from nests, clutch frequency, and 

remigration interval). 

e. Greater Caribbean Recovery Unit

(1) The total annual number of nests at a minimum of three nesting assemblages, 

averaging greater than 100 nests annually (e.g., Yucatán, Mexico; Cay Sal 

Bank, The Bahamas) has increased over a generation time of 50 years. 

(2) This increase in number of nests must be a result of corresponding increases 

in number of nesting females (estimated from nests, clutch frequency, and 

remigration interval). 
x 

2. Trends in Abundance on Foraging Grounds

A network of in-water sites, both oceanic and neritic, distributed across the foraging 

range is established and monitoring is implemented to measure abundance. There is 

statistical confidence (95%) that a composite estimate of relative abundance from 

these sites is increasing for at least one generation. 

3. Trends in Neritic Strandings Relative to In-water Abundance

Stranding trends are not increasing at a rate greater than the trends in in-water relative 

abundance for similar age classes for at least one generation. 

LISTING FACTOR RECOVERY CRITERIA: 

1. Present or Threatened Destruction, Modification, or Curtailment of a Species 

Habitat or Range

a. Terrestrial 

(1) Beach armoring, shoreline stabilization structures, and all other barriers to 

nesting are categorized and inventoried for areas under U.S. jurisdiction. A 

peer-reviewed strategy is developed and implemented to ensure that the 

percentage of nesting beach free of barriers to nesting is stable or increasing 

relative to baseline levels. 

(2) Beach sand placement projects conducted in areas under U.S. jurisdiction are 

in compliance with state and FWS criteria and are conducted in a manner that 

accommodates loggerhead needs and does not degrade or eliminate nesting 

habitat. 

(3) At least 1,581 km of loggerhead nesting beaches and adjacent uplands (current 

amount as identified in Appendix 4) under U.S. jurisdiction are maintained 

within conservation lands in public (Federal, state, or local) or private (NGO 

and private conservation lands) ownership that are managed in a manner 

compatible with sea turtle nesting. 

(4) A peer-reviewed model is developed that describes the effects of sea level rise 

on loggerhead nesting beaches, and steps have been taken to mitigate such 

effects. 

(5) Nesting beaches outside U.S. jurisdiction are managed for compatibility with 

loggerhead nesting. 

b. Marine (estuarine, neritic, and oceanic) 

A peer-reviewed, comprehensive strategy is developed and implemented to 

identify, prioritize, and protect marine habitats (e.g., feeding, migratory, internesting) important to loggerheads. 

2. Overutilization for Commercial, Recreational, Scientific, or Educational 

Purposes

a. Legal harvest (both commercial and subsistence) in the Caribbean, Atlantic, and 

Mediterranean is identified and quantified. A strategy is developed and 

implemented to eliminate legal harvest through international agreements. 
xi 

b. A scientifically based nest management plan outlining strategies for protecting 

nests (under U.S. jurisdiction) from natural and manmade impacts is developed 

and implemented. 

3. Disease or Predation

a. Ecologically sound predator control programs are implemented to ensure that the 

annual rate of mammalian predation on nests (under U.S. jurisdiction) is 10% or 

below within each recovery unit based on standardized surveys. 

b. A peer-reviewed strategy is developed to recognize, respond to, and investigate 

mass/unusual mortality or disease events. 

4. Inadequacy of Existing Regulatory Mechanisms

a. Light management plans, which meet minimum standards identified in the Florida 

Model Lighting Ordinance (Florida Administrative Code Rule 62B-55), are 

developed, fully implemented, and effectively enforced on nesting beaches under 

U.S. jurisdiction. Annual percentage of total nests with hatchlings disoriented or 

misoriented by artificial lighting does not exceed 10% based on standardized 

surveys. 

b. Specific and comprehensive Federal legislation is developed, promulgated, 

implemented, and enforced to ensure long-term (including post-delisting) 

protection of loggerheads and their terrestrial and marine habitats, including 

protection from fishery interactions. 

c. State and local legislation is developed and/or maintained, promulgated, 

implemented, and enforced to ensure long-term (including post-delisting) 

protection of loggerheads and their terrestrial and marine habitats, including 

protection from fishery interactions. 

d. Foreign nations with significant loggerhead foraging or migratory habitat have 

implemented national legislation and have acceded to international and multilateral agreements to ensure long-term protection of loggerheads and their habitats. 

Nations that have important foraging or migratory habitat include Canada, Mexico, 

Cuba, The Bahamas, Turks and Caicos Islands, Nicaragua, Panama, Colombia, 

Spain, Portugal, Morocco, and Cape Verde Islands. 

e. Nations that conduct activities affecting loggerheads in foraging or migratory 

habitats in the North Atlantic Basin and the western Mediterranean have 

implemented national legislation and have acceded to international and multilateral agreements to ensure long-term protection of loggerheads and their habitats 

throughout the high seas and in foreign EEZs. 

5. Other Natural or Manmade Factors Affecting Its Continued Existence

a. A peer-reviewed strategy is developed and fully implemented to minimize fishery 

interactions and mortality for each domestic commercial fishing gear type that has 

loggerhead bycatch. 

b. A peer-reviewed strategy is developed and fully implemented in cooperation with 

relevant nations to minimize fishery interactions and mortality of loggerheads in 

foreign EEZs and on the high seas. 
xii 

c. A peer-reviewed strategy is developed and fully implemented to quantify, monitor, 

and minimize effects of trophic changes on loggerheads (e.g., diet, growth rate, 

fecundity) from fishery harvests and habitat alterations. 

d. A peer-reviewed strategy is developed and fully implemented to quantify, monitor, 

and minimize the effects of marine debris ingestion and entanglement in U.S. 

territorial waters, the U.S. EEZ, foreign EEZs, and the high seas. 

e. A peer-reviewed strategy is developed and fully implemented to minimize vessel 

strike mortality in U.S. territorial waters and the U.S. EEZ. 

ACTIONS NEEDED: The Plan identifies 208 actions needed to achieve recovery of the Northwest 

Atlantic population of the loggerhead sea turtle. These actions are aimed at addressing the 13 

Recovery Objectives identified above. The Plan includes 34 Priority 1 actions (i.e., actions that 

must be taken to prevent extinction or to prevent the species from declining irreversibly in the 

foreseeable future). Priority 1 actions include monitoring trends on nesting beaches and at inwater sites; minimizing the effects of coastal armoring; maintaining the current length and 

quality of protected nesting beach; acquiring and protecting additional properties on key nesting 

beaches; protecting and monitoring important neritic and oceanic habitats; implementing 

measures to minimize bycatch in large mesh and other gillnet fisheries; promulgating regulations 

to require TEDs in trawl fisheries where they currently are not required (e.g., domestic 

commercial flynet trawl fisheries; domestic commercial non-shrimp trawl fisheries south of Cape 

Hatteras, North Carolina; all trynets in the domestic commercial shrimp fishery); reducing effort 

in the domestic commercial shrimp trawl fishery; implementing seasonal TED regulations for 

domestic commercial non-shrimp trawl fisheries operating from Cape Charles, Virginia, north to 

Long Island Sound; investigating the effectiveness of time-area closures to minimize loggerhead 

interactions in domestic commercial pelagic and demersal longline fisheries; promulgating 

regulations that minimize loggerhead interactions with commercial pelagic and demersal 

longline fisheries; enforcing longline regulations in U.S. territorial waters, the U.S. EEZ, and on 

the high seas; reducing vessel interactions with loggerheads; maintaining the Sea Turtle 

Stranding and Salvage Network; working with foreign nations to eliminate commercial and 

subsistence harvest; encouraging and assisting foreign nations in the development, 

implementation, and enforcement of fishery regulations to minimize loggerhead bycatch in 

commercial pelagic longline fisheries, commercial trawl fisheries, and commercial gillnet 

fisheries; and encouraging ICCAT, Canada, Mexico, and the European Union to implement 

standards for collecting loggerhead bycatch information and requirements to minimize 

loggerhead bycatch.
xiii 

TABLE OF CONTENTS 

PREFACE...................................................................................................................................... ii 

DISCLAIMER.............................................................................................................................. iv 

RECOVERY TEAM..................................................................................................................... v 

ACKNOWLEDGMENTS ............................................................................................................ v 

EXECUTIVE SUMMARY ......................................................................................................... vi 

TABLE OF CONTENTS ..........................................................................................................xiii 

LIST OF ACRONYMS AND ABBREVIATIONS .................................................................. xv 

PART I. BACKGROUND.........................................................................................................I-1 

A. BRIEF OVERVIEW.............................................................................................................I-1 

B. TAXONOMY.......................................................................................................................I-2 

C. SPECIES DESCRIPTION .....................................................................................................I-3 

D. DISTRIBUTION AND POPULATION SIZE............................................................................I-3 

E. POPULATION STATUS AND TRENDS .................................................................................I-5 

E.1. NESTING POPULATIONS ...............................................................................................I-5 

E.2. IN-WATER POPULATIONS ...........................................................................................I-11 

F. LIFE HISTORY AND HABITAT.........................................................................................I-17 

F.1. TERRESTRIAL ZONE (NESTING BEACH)....................................................................I-22 

F.2. NERITIC ZONE: HATCHLING SWIM FRENZY STAGE AND POST-HATCHLING 

TRANSITIONAL STAGE...............................................................................................I-23 

F.3. OCEANIC ZONE: JUVENILE STAGE ...........................................................................I-24 

F.4. NERITIC ZONE: JUVENILE STAGE.............................................................................I-27 

F.5. NERITIC ZONE: ADULT STAGE .................................................................................I-29 

F.6. OCEANIC ZONE: ADULT STAGE................................................................................I-30 

G. BIOLOGICAL CONSTRAINTS AND NEEDS .......................................................................I-31 

H. THREATS.........................................................................................................................I-31 

H.1. TERRESTRIAL ZONE (NESTING BEACH) ...................................................................I-31 

RESOURCE USE (NON-FISHERIES) ......................................................................................I-31 

CONSTRUCTION AND DEVELOPMENT..................................................................................I-35 

ECOSYSTEM ALTERATIONS .................................................................................................I-41 

POLLUTION.......................................................................................................................I-42 

SPECIES INTERACTIONS .....................................................................................................I-44 

OTHER FACTORS...............................................................................................................I-45 

H.2. NERITIC ZONE ...........................................................................................................I-46 

RESOURCE USE (FISHERIES)..............................................................................................I-46 

RESOURCE USE (NON-FISHERIES).....................................................................................I-51 

CONSTRUCTION AND DEVELOPMENT .................................................................................I-55 

ECOSYSTEM ALTERATIONS .................................................................................................I-56 

POLLUTION.......................................................................................................................I-58 

SPECIES INTERACTIONS .....................................................................................................I-61 

OTHER FACTORS...............................................................................................................I-62 

H.3. OCEANIC ZONE..........................................................................................................I-63 

RESOURCE USE (FISHERIES)..............................................................................................I-63 

RESOURCE USE (NON-FISHERIES).....................................................................................I-64 
xiv 

ECOSYSTEM ALTERATIONS .................................................................................................I-65 

SPECIES INTERACTIONS .....................................................................................................I-66 

POLLUTION.......................................................................................................................I-66 

OTHER FACTORS...............................................................................................................I-67 

I. MAJOR CONSERVATION EFFORTS.................................................................................I-67 

I.1. TERRESTRIAL ZONE (NESTING BEACH).....................................................................I-67 

I.2. NERITIC ZONE.............................................................................................................I-70 

I.3. OCEANIC ZONE ...........................................................................................................I-76 

I.4. OTHER .........................................................................................................................I-76 

PART II. RECOVERY STRATEGY..................................................................................... II-1 

A. OVERVIEW...................................................................................................................... II-1 

B. RECOVERY UNITS........................................................................................................... II-2 

C. RECOVERY GOAL........................................................................................................... II-6 

D. RECOVERY OBJECTIVES ................................................................................................ II-6 

E. RECOVERY CRITERIA..................................................................................................... II-7 

E.1. DEMOGRAPHIC RECOVERY CRITERIA ...................................................................... II-7 

E.2. LISTING FACTOR RECOVERY CRITERIA ................................................................. II-21 

F. RECOVERY PROGRAM.................................................................................................. II-23 

F.1. RECOVERY ACTION OUTLINE.............................................................................. II-23 

F.2. RECOVERY ACTION NARRATIVE ......................................................................... II-35 

PART III. RECOVERY IMPLEMENTATION.................................................................. III-1 

PART IV. LITERATURE CITED.........................................................................................IV-1 

PART V. APPENDICES ......................................................................................................... V-1 

APPENDIX 1: LOGGERHEAD THREATS ANALYSIS ................................................................ V-3 

APPENDIX 2: THREATS TABLES .......................................................................................... V-17 

APPENDIX 3: LEGAL HARVEST TABLE ............................................................................... V-25 

APPENDIX 4: CONSERVATION LANDS TABLE ..................................................................... V-33 
xv 

LIST OF ACRONYMS AND ABBREVIATIONS 

The following are standard abbreviations for acronyms and terms found throughout this 

document: 

ACCSTR - Archie Carr Center for Sea Turtle Research, University of Florida 

ADCNR - Alabama Department of Conservation and Natural Resources 

ADEM - Alabama Department of Environmental Management 

ASMFC - Atlantic States Marine Fisheries Commission 

CCL - Curved Carapace Length 

CFR - Code of Federal Regulations 

CITES - Convention on the International Trade in Endangered Species of Wild Fauna and Flora 

CMTTP - Cooperative Marine Turtle Tagging Program 

COE - U.S. Army Corps of Engineers 

DOD - Department of Defense 

DOS - U.S. Department of State 

DTRU - Dry Tortugas Recovery Unit 

EEZ - Exclusive Economic Zone 

EPA - Environmental Protection Agency 

ESA - Endangered Species Act of 1973, as amended 

FAO-COFI - Food and Agriculture Organization-Committee on Fisheries 

FDEP - Florida Department of Environmental Protection 

FFWCC - Florida Fish and Wildlife Conservation Commission 

FMC - Fishery Management Council 

FMP - Fishery Management Plan 

FPL - Florida Power and Light Company 

FR - Federal Register 

FWS - U.S. Fish and Wildlife Service 

FWS-ES - U.S. Fish and Wildlife Service-Ecological Services 

GCRU - Greater Caribbean Recovery Unit 

GDNR - Georgia Department of Natural Resources 

GIS - Geographic Information System 

GMFMC - Gulf of Mexico Fishery Management Council 

GSMFC - Gulf States Marine Fisheries Commission 

HCP - Habitat Conservation Plan 

IAC - Inter-American Convention for the Conservation and Protection of Marine Turtles 

ICCAT - International Commission for the Conservation of Atlantic Tunas 

INBS - Index Nesting Beach Survey 

MAFMC - Mid-Atlantic Fishery Management Council 

MMS - Minerals Management Service 

mtDNA - Mitochondrial Deoxyribonucleic Acid 

MTSG - Marine Turtle Specialist Group 

NCDENR - North Carolina Department of Environment and Natural Resources 

NCWRC - North Carolina Wildlife Resources Commission 

NEFMC - New England Fishery Management Council 

NGO - Non-governmental Organization 
xvi 

NGMRU - Northern Gulf of Mexico Recovery Unit 

NM - National Monument 

NMFS - National Marine Fisheries Service 

NOAA - National Oceanic and Atmospheric Administration 

NOS - National Ocean Service 

NPS - National Park Service 

NRU - Northern Recovery Unit 

NS - National Seashore 

NWR - National Wildlife Refuge 

PFRU - Peninsular Florida Recovery Unit 

SAFMC - South Atlantic Fishery Management Council 

SCDHEC - South Carolina Department of Health and Environmental Control 

SCDNR - South Carolina Department of Natural Resources 

SCDPRT - South Carolina Department of Parks, Recreation and Tourism 

SCL - Straight Carapace Length 

SEFSC - Southeast Fisheries Science Center 

SP - State Park 

SRA - State Recreation Area 

STSSN - Sea Turtle Stranding and Salvage Network 

TED - Turtle Excluder Device 

TEWG - Turtle Expert Working Group 

TPWD - Texas Parks and Wildlife Department 

UCF - University of Central Florida 

USC - U.S. Code 

USCG - U.S. Coast Guard 

USGS-NWHC - U.S. Geological Survey-National Wildlife Health Center 

VIMS - The Virginia Institute of Marine Science 

WIDECAST - Wider Caribbean Sea Turtle Conservation Network 
I-1

PART I. BACKGROUND 

A. BRIEF OVERVIEW

The loggerhead sea turtle (Caretta caretta) was listed as threatened throughout its range on July 

28, 1978, under the Endangered Species Act of 1973, as amended (ESA) (FWS and NMFS 1978, 

43 FR 32800) and has received Federal protection since that time. Therefore, the entire species 

is the listed entity. However, in this recovery plan, we have identified recovery units for the 

Northwest Atlantic loggerhead population (see Part II.B. Recovery Units). At this time, the 

Northwest Atlantic loggerhead population is only a “potential” distinct population segment 

(DPS) and cannot be considered for delisting separately from the listed entity (i.e., the entire 

species) until it meets both the recovery criteria for each recovery unit and has completed a 

formal DPS evaluation and designation, which would involve a proposed rulemaking, public 

review and comment, and a final rulemaking. (In 1996, FWS and NMFS published a joint policy 

defining the phrase “distinct population segment” (FWS and NMFS 1996, 61 FR 4722). Three 

elements are considered in a decision regarding the listing, delisting, or reclassification of a DPS 

as endangered or threatened under the ESA: discreteness of the population segment in relation to 

the remainder of the species, significance of the population segment to the species, and 

conservation status. In early 2008, NMFS established a Loggerhead Biological Review Team to 

assess the loggerhead population structure globally to determine whether DPSs exist and, if so, to 

assess the status of each DPS. The Loggerhead Biological Review Team will review and 

synthesize information, render expert opinion, and prepare a written report (status review) by 

mid-2009. 

Loggerhead sea turtles inhabit the temperate and tropical regions of the Atlantic, Pacific, and 

Indian Oceans. Within the continental U.S., loggerheads nest from Texas to Virginia. Major 

nesting concentrations in the U.S. are found on the coastal islands of North Carolina, South 

Carolina, and Georgia, and on the Atlantic and Gulf coasts of Florida (NMFS 1984). Within the 

western Atlantic, loggerheads also nest in Mexico, The Bahamas, Cuba, and the Greater 

Caribbean (Addison and Morford 1996, Dodd 1988, Moncada Gavilán 2001, Zurita et al. 2003). 

The estimated annual number of loggerhead nests in the southeast U.S., The Bahamas (Cay Sal 

Bank), Cuba, and Mexico is presented in Figure 1 (FFWCC, unpublished data; GDNR, 

unpublished data; SCDNR, unpublished data; NCWRC, unpublished data; FWS, unpublished 

data; NPS, unpublished data; Julio Zurita, personal communcation, 2006; Dow et al. 2007). 
I-2

Figure 1. Estimated annual number of loggerhead nests in the southeast U.S., The Bahamas 

(Cay Sal Bank), Cuba, and Mexico, 2001-2008. 

From a global perspective, the U.S. nesting aggregation is of paramount importance to the 

survival of the species as is the population that nests on islands in the Arabian Sea off Oman 

(Ross 1982, Ehrhart 1989). The loggerhead nesting aggregations in Oman and the U.S. account 

for the majority of nesting worldwide. 

The highly migratory behavior of loggerheads makes them shared resources among many 

nations. Therefore, conservation efforts for loggerhead populations in one country may be 

jeopardized by activities in another. Protecting loggerheads on U.S. nesting beaches and in U.S. 

waters alone, therefore, is not sufficient to ensure the continued existence of the species. 

Although this revised recovery plan primarily focuses on activities to recover the loggerhead in 

the U.S., it also recognizes and encourages cooperative efforts with other nations to ensure the 

survival and recovery of the species throughout the Northwest Atlantic. 

B. TAXONOMY

The loggerhead was first described by Linnaeus in 1758 and named Testudo caretta. Over the 

next two centuries more than 35 names were applied to the species (Dodd 1988), but there is now 

general agreement on Caretta caretta as the valid name. While Deraniyagala described an IndoPacific form as C. gigas in 1933, he revised that view in 1939 to hold that gigas was a subspecies 

of C. caretta. The genus has generally been regarded as monotypic since that time. The 

ANNUAL NUMBER 

OF NESTS 

1,001 - 10,000 

101 - 1,000 

1 - 100 

10,001 - 100,000 

Virginia 

North Carolina 

East Florida 

Georgia 

Dry Tortugas 

South Carolina 

Cay Sal Bank Tamaulipas 

Texas 

Campeche 

Vera Cruz 

Yucatan 

Louisiana 

Mississippi Alabama 

Florida 

Panhandle 

SW Florida 

Quintana Roo 

Cuba 

The Bahamas 
I-3

subspecific designation of gigas has likewise been challenged persuasively (Brongersma 1961, 

Pritchard 1979). Dodd (1988) has declared flatly that “the diagnostic characters used to 

distinguish C. c. gigas from C. c. caretta are not valid.” Thorough synonymies and taxonomic 

reviews of this form are given most recently by Pritchard and Trebbau (1984) and Dodd (1988). 

Subspecies assignments are not supported based on genetic evidence (Bowen 2003). 

C. SPECIES DESCRIPTION

The carapace of adult and juvenile loggerheads is reddish-brown. The dorsal and lateral head 

scales and the dorsal scales of the flippers are also reddish-brown, but with light to medium 

yellow margins. The unscaled areas of the integument (neck, shoulders, limb bases, inguinal 

area) are dull brown dorsally and light to medium yellow laterally and ventrally. The plastron is 

medium to light yellow, and the thick, bony carapace is covered by non-overlapping scutes that 

meet along seam lines. There are 11 or 12 pairs of marginal scutes, five pairs of costals, five 

vertebrals, and a nuchal (precentral) scute that is in contact with the first pair of costal scutes. 

The plastron is composed of paired gular, humeral, pectoral, abdominal, femoral, and anal scutes 

and connected to the carapace by three pairs of poreless inframarginal scutes. Mean straight 

carapace length (SCL) of adults in the southeast U.S. is approximately 92 cm; corresponding 

mass is approximately 116 kg (Ehrhart and Yoder 1978). Hatchlings vary from light to dark 

brown to dark gray dorsally and lack the reddish-brown coloration of adults and juveniles. 

Flippers are dark gray to brown above with distinct white margins. The ventral coloration of the 

plastron and other areas of the integument are generally yellowish to tan. The carapace has three 

keels and the plastron has two keels. At emergence, hatchlings average 45 mm in SCL and 

weigh approximately 20 g (Dodd 1988). 

D. DISTRIBUTION AND POPULATION SIZE

The loggerhead occurs throughout the temperate and tropical regions of the Atlantic, Pacific, and 

Indian Oceans. However, the majority of loggerhead nesting is at the western rims of the 

Atlantic and Indian Oceans (Figure 2). The most recent reviews show that only two loggerhead 

nesting aggregations have greater than 10,000 females nesting per year (Baldwin et al. 2003, 

Ehrhart et al. 2003, Kamezaki et al. 2003, Limpus and Limpus 2003, Margaritoulis et al. 2003): 

South Florida (U.S.) and Masirah (Oman). Those nesting aggregations with 1,000 to 9,999 

females nesting each year are Georgia through North Carolina (U.S.), Quintana Roo and Yucatán 

(Mexico), Brazil, Cape Verde Islands (Cape Verde, eastern Atlantic off Africa), and Western 

Australia (Australia). Smaller nesting aggregations with 100 to 999 nesting females annually 

occur in the Northern Gulf of Mexico (U.S.), Dry Tortugas (U.S.), Cay Sal Bank (The Bahamas), 

Tongaland (South Africa), Mozambique, Arabian Sea Coast (Oman), Halaniyat Islands (Oman), 

Cyprus, Peloponnesus (Greece), Island of Zakynthos (Greece), Turkey, Queensland (Australia), 

and Japan. 

In the U.S., loggerheads nest from Texas to Virginia. The majority of nesting in the southeast 

U.S. currently occurs on over 2,400 km of beaches: North Carolina (531 km), South Carolina 

(303 km), Georgia (164 km), Florida (1,327 km), and Alabama (78 km). Total estimated nesting 

in the U.S. has fluctuated between 47,000 and 90,000 nests per year over the last decade 

(FFWCC, unpublished data; GDNR, unpublished data; SCDNR, unpublished data; NCWRC, 
I-4

unpublished data). About 80% of loggerhead nesting in the southeast U.S. occurs in six Florida 

counties (Brevard, Indian River, St. Lucie, Martin, Palm Beach, and Broward counties). Adult 

loggerheads are known to make considerable migrations between foraging areas and nesting 

beaches (Plotkin and Spotila 2002, Schroeder et al. 2003, Hawkes et al. 2007, Foley et al. in 

press). During non-nesting years, adult females from U.S. beaches are distributed in waters off 

the eastern U.S., The Bahamas, Greater Antilles, and Yucatán, and throughout the Gulf of 

Mexico. 

Figure 2. Global distribution of loggerhead nesting assemblages. 

The loggerhead is commonly found throughout the North Atlantic including the Gulf of Mexico, 

the northern Caribbean, The Bahamas archipelago (Dow et al. 2007), and eastward to West 

Africa, the western Mediterranean, and the west coast of Europe. In contrast to determining 

population size on nesting beaches, determining population size in the marine environment has 

been localized (Bjorndal and Bolten 2000). At present, there are no data on population size in 

the oceanic habitat. 

≥ 10,000 

1,000 - 9,999 

100 - 999 

NESTING FEMALES 

PER YEAR 
I-5

E. POPULATION STATUS AND TRENDS

E.1. NESTING POPULATIONS

Numbers of nests and nesting females are often highly variable from year to year due to a 

number of factors including environmental stochasticity, periodicity in ocean conditions, 

anthropogenic effects, and density-dependent and density-independent factors affecting survival, 

somatic growth, and reproduction (Meylan 1982, Hays 2000, Chaloupka 2001, Solow et al. 

2002). Despite these sources of variation, and because female turtles exhibit strong nest site 

fidelity, a nesting beach survey can provide a valuable assessment of changes in the adult female 

population, provided that the study is sufficiently long and effort and methods are standardized 

(Meylan 1982, Gerrodette and Brandon 2000, Reina et al. 2002). 

Two important sources of variation with regard to nesting trends are remigration interval and 

clutch frequency. These two demographic parameters affect the number of nests laid during a 

nesting season (Hays 2000, Solow 2001, Solow et al. 2002). For example, if the mean 

remigration interval (i.e., the length of time between successive nesting migrations) of females in 

a population increases as a result of environmental conditions, a subsequent decrease in numbers 

of nests does not necessarily indicate a decrease in adult females. Similarly, if clutch frequency 

decreases, a subsequent decrease in numbers of nests does not necessarily equate to a decrease in 

adult females. Alternatively, if remigration interval decreases and/or clutch frequency increases, 

a subsequent increase in numbers of nests does not necessarily equate to an increase in adult 

females. 

With regard to loggerheads nesting in the southeast U.S., we have no information that indicates a 

change in clutch frequency or remigration interval has occurred. Therefore, standardized time 

series data on the number of nests were evaluated to determine whether trends could be detected 

for U.S. nesting assemblages. Within a nesting season, the number of nesting females is directly 

related to the number of nests deposited. Clutch frequency for loggerheads has been reported as 

3-5.5 nests per female per season (see Table 3). The conversion from number of nests to number 

of females nesting within a season is a simple division of nests divided by clutch frequency. 

The Recovery Team designated five recovery units for the Northwest Atlantic population of the 

loggerhead. The first four of these recovery units represent nesting assemblages in the southeast 

U.S. The fifth recovery unit is composed of all other nesting assemblages of loggerheads within 

the Greater Caribbean, outside the U.S. The biological basis and delineations of all recovery 

units are described in detail in Part II, Recovery Program. The five recovery units representing 

nesting assemblages are: 

1. Northern Recovery Unit (FL/GA border through southern VA) 

2. Peninsular Florida Recovery Unit (FL/GA border through Pinellas County, FL) 

3. Dry Tortugas Recovery Unit (islands located west of Key West, FL) 

4. Northern Gulf of Mexico Recovery Unit (Franklin County, FL, through TX) 

5. Greater Caribbean Recovery Unit (Mexico through French Guiana, The Bahamas, Lesser 

Antilles, and Greater Antilles) 
I-6

The Recovery Team evaluated the status and trends of the Northwest Atlantic loggerhead 

population for each of the five recovery units. To determine population status and trends, the 

Recovery Team used nesting data available as of October 2008. Table 1 describes the available 

time series analyzed for each recovery unit. 

Table 1. Time series analyzed for each recovery unit to determine population size, trend, annual 

variation, and baseline number of nests for calculating demographic recovery criteria. 

Recovery Unit Population Size and 

Baseline Number of 

Nests 

Trend and Annual 

Variation (CV) 

NRU 1989-2008 

(Table 5(c)) 

1983-2008 

(Table 5(b)) 

PFRU 1989-2007 

(Table 6(c)) 

1989-2008 

(Table 6(b)) 

DTRU 1995-2001, 2003-2004 

(Table 7(b)) 

1995-2001, 2003-2004 

(Table 7(b)) 

NGMRU 1995-2007 (FL) 

2002-2007 (AL) 

(Table 8(c)) 

1997-2008 

(Table 8(b)) 

Northern Recovery Unit (NRU) 

The Northern Recovery Unit is the second largest loggerhead nesting aggregation in the 

Northwest Atlantic. Annual nest totals from northern beaches averaged 5,215 nests from 1989-

2008, a period of near-complete surveys of NRU nesting beaches (Table 5(c); GDNR, 

unpublished data; NCWRC, unpublished data, SCDNR, unpublished data), representing 

approximately 1,272 nesting females per year (4.1 nests per female, Murphy and Hopkins 1984). 

The loggerhead nesting trend from daily beach surveys showed a significant decline of 1.3% 

annually. Nest totals from aerial surveys conducted by SCDNR showed a 1.9% annual decline 

in nesting in South Carolina since 1980. Overall, there is strong statistical data to suggest the 

NRU has experienced a long-term decline. 

Standardized Ground Surveys of Nesting Beaches

Historically, survey effort on NRU beaches has been variable, making it difficult to assess 

nesting trends. In order to standardize the data used in our analyses, we included only annual 

nest totals from beaches that met the following criteria: (1) nesting surveys were initiated in May 

and continued through August; (2) surveys were conducted daily throughout the nesting season; 

and (3) the survey area was standardized throughout the duration of the study, although we 

allowed for small changes in beach length (± 0.5 km). 

Sea turtle project coordinators from GDNR, NCWRC, and SCDNR supplied nesting data for the 

analysis. Generally, coordinators used information from annual nesting reports to ensure data 

met standardized survey protocols. If survey start and end dates were not included in reports, 

first and last nest dates were used to determine the beginning and end of the survey period. 
I-7

When annual reports were not available, coordinators relied on interviews with field personnel to 

confirm historic survey effort data. 

The dataset used for this analysis included the summed annual nest totals from all beaches with 

an uninterrupted time-series of at least 20 years (Table 5(a)). Ten beaches from North Carolina, 

South Carolina, and Georgia met the criteria for inclusion in the analysis. In addition, we 

included nesting data from Cape Island, South Carolina, because of its relative importance as a 

NRU nesting beach. Cape Island increased in size from approximately 8 km to 13 km during the 

study period and, therefore, did not meet the criteria for standardized survey length. However, 

Cape Island is the highest density nesting beach in the NRU and represented approximately 16% 

of total nesting in 2008. We included data from Cape Island to ensure our sample was 

representative of NRU trends. The sample of 11 beaches included in the analysis represented 

approximately 27% of NRU nesting in 2008. 

Figure 3 shows summed nest totals from 11 NRU beaches (Hammocks Beach State Park, 

Onslow Beach, Bald Head Island, Cape Island, Edisto Beach State Park, Edisto Beach, Fripp 

Island, Pritchards Island, Wassaw Island, Blackbeard Island, and Little Cumberland Island) from 

1983-2008 (Table 5(b)). To examine trends in annual nest totals, we used a log-linear regression 

with an autoregressive error correction to account for temporal correlation in annual nest totals. 

Results from the regression analysis showed a significant (P=0.03) declining trend of 1.3% 

annually in loggerhead nesting. 

0

500

1,000

1,500

2,000

2,500

3,000

1

983

1

985

1

987

1

989

1

991

1

993

1

995

1

997

1

999

2001

2003

2005

2007

Year

Loggerhead Nests

Figure 3. Summed annual loggerhead nest counts from 11 Northern Recovery Unit beaches, 

1983-2008 (Table 5(b)). 
I-8

Standardized Aerial Surveys of Nesting Beaches

Standardized aerial surveys of nesting beaches conducted by SCDNR represent an additional 

dataset for assessing NRU nesting trends (Hopkins-Murphy et al. 2001). Beginning in 1980, 

aerial surveys were conducted in 3-year blocks separated by 2-year blocks during which 

complete aerial surveys were not conducted. Twelve aerial surveys were conducted biweekly 

during June and July for the entire South Carolina coast with the exception of Horry County. An 

annual nest total was derived by estimating the percent nesting represented by the 12 flight days 

(after adjusting for bias from ground truth beaches) and then extrapolating to an overall total for 

the season (from a summary composite curve of nesting) (Hopkins-Murphy et al. 2001). Figure 

4 shows loggerhead nest estimates from South Carolina aerial surveys, 1980-2007. A log-linear 

regression with autoregressive error correction showed a significant (P<0.003) annual decrease 

of 1.9% in loggerhead nesting. The South Carolina data represent 68% of NRU nesting totals in 

2007 (SCDNR, unpublished data). 

0

1,000

2,000

3,000

4,000

5,000

6,000

7,000

8,000

19801982198419861988199019921994199619982000200220042006

Year

Loggerhead Nests

Figure 4. Annual loggerhead nest estimates for South Carolina from aerial surveys conducted in 

3-year blocks, 1980-2007. 

Peninsular Florida Recovery Unit (PFRU) 

The Peninsular Florida Recovery Unit is the largest loggerhead nesting assemblage in the 

Northwest Atlantic. A near-complete nest census of the PFRU undertaken from 1989 to 2007 

(2008 statewide data were not available prior to completion of this recovery plan) reveals a mean 

of 64,513 loggerhead nests per year representing approximately 15,735 females nesting per year 

(4.1 nests per female, Murphy and Hopkins 1984) (Table 6(c); FFWCC, unpublished data). This 
I-9

near-complete census provides the best statewide estimate of total abundance, but because of 

variable survey effort, these numbers cannot be used to assess trends. 

Loggerhead nesting trends are best assessed using standardized nest counts made at index 

nesting beach sites surveyed with constant effort over time (Table 6(a)). An analysis of these 

data has shown a decline in nesting from 1989-2008 (Figure 5; Table 6(b); Witherington et al. 

2009). The analysis that reveals this decline uses nest-count data from 345 representative 

Atlantic-coast index zones (total length = 301 km) and 23 representative zones on Florida’s 

southern Gulf coast (total length = 23 km). The spatial and temporal coverage (annually, 109 

days and 368 zones) accounted for an average of 70% of statewide loggerhead nesting activity 

between 1989 and 2008. Negative binomial regression models that fit restricted cubic spline 

curves to aggregated nest-counts were used in trend evaluations. Results of the analysis 

indicated that there had been a decrease of 26% over the 20-year period (95% CI: -42% to -5%) 

and a 41% decline since 1998 (r2 = 0.7196, P<0.0001). The mean annual rate of decline for the 

20-year period was 1.6%. 

Figure 5. Summed annual loggerhead nest counts from 26 Peninsular Florida Recovery Unit 

beaches, 1989-2008 (Table 6(b)). The trend line was estimated by fitting a restricted cubic 

spline curve to the total counts via negative binomial regression (Witherington et al. 2009). 

Note: Y-axis does not start at zero. 

Dry Tortugas Recovery Unit (DTRU) 

The Dry Tortugas Recovery Unit, located west of the Florida Keys, is the smallest of the 

identified recovery units. A near-complete nest census of the DTRU undertaken from 1995 to 

2004, excluding 2002, (9 years surveyed) reveals a mean of 246 nests per year, which equates to 

20000

25000

30000

35000

40000

45000

50000

55000

60000

65000

1988

1989

1990

1991

1992

1993

1994

1995

1996

1997

1998

1999

2000

2001

2002

2003

2004

2005

2006

2007

2008

Year

Nests
I-10

about 60 females nesting per year (4.1 nests per female, Murphy and Hopkins 1984) (Table 7(b); 

FFWCC, unpublished data). Surveys after 2004 did not include principal nesting beaches within 

the recovery unit (i.e., Dry Tortugas National Park). 

The nesting trend data for the DTRU are from beaches that are not part of the INBS program but 

are part of the statewide nesting beach survey program (Table 7(a)). There are 9 years of data 

for this recovery unit (Figure 6; Table 7(b)). A simple linear regression accounting for temporal 

autocorrelation revealed no trend in nesting numbers. Because of the annual variability in nest 

totals, a longer time series is needed to detect a trend. 

0

50

100

150

200

250

300

350

400

1

994

1

995

1

996

1

997

1

998

1

999

2000

2001

2002

2003

2004

2005

Year

Loggerhead Nests

Figure 6. Summed annual loggerhead nest counts from three Dry Tortugas Recovery Unit 

beaches, 1995-2004, excluding 2002 (Table 7(b)).

Northern Gulf of Mexico Recovery Unit (NGMRU) 

The Northern Gulf of Mexico Recovery Unit is the third largest nesting assemblage among the 

four U.S. recovery units. Nesting surveys conducted on approximately 300 km of beach within 

the NGMRU (Alabama and Florida only) were undertaken between 1995 and 2007 (2008 

statewide data were not available prior to completion of this recovery plan; statewide surveys in 

Alabama began in 2002). The mean nest count during this 13-year period was 906 nests per 

year, which equates to about 221 females nesting per year (4.1 nests per female, Murphy and 

Hopkins 1984) (Table 8(c); FFWCC, unpublished data). 

Evaluation of long-term nesting trends for the NGMRU is difficult because of changed and 

expanded beach coverage. Loggerhead nesting trends are best assessed using standardized nest 

counts made at index nesting beach sites surveyed with constant effort over time (Table 8(a)). 

There are 12 years (1997-2008) of Florida index nesting beach survey (INBS) data for the 
I-11

NGMRU (Figure 7; Table 8(b); FFWCC, unpublished data). A log-linear regression showed a 

significant declining trend (P=0.02) of 4.7% annually. 

0

50

100

150

200

250

1997

1998

1999

2000

2001

2002

2003

2004

2005

2006

2007

2008

Year

Loggerhead Nests

Figure 7. Summed annual loggerhead nest counts from three Northern Gulf of Mexico 

Recovery Unit beaches, 1997-2008 (Table 8(b)). 

Greater Caribbean Recovery Unit (GCRU) 

The Greater Caribbean Recovery Unit is composed of all other nesting assemblages of 

loggerheads within the Greater Caribbean. Statistically valid analyses of long-term nesting 

trends for the entire GCRU are not available because there are few long-term standardized 

nesting surveys representative of the region. Additionally, changing survey effort at monitored 

beaches and scattered and low-level nesting by loggerheads at many locations currently 

precludes comprehensive analyses. The most complete data are from Quintana Roo, Yucatán, 

Mexico, where an increasing trend was reported over a 15-year period from 1987-2001. 

However, nesting since 2001 has declined and the previously reported increasing trend appears 

not to have been sustained (Julio Zurita, personal communcation, 2006). Other smaller nesting 

populations have experienced declines over the past few decades (e.g., Amorocho 2003). 

E.2. IN-WATER POPULATIONS

In contrast to determining population size and trends on nesting beaches, determining population 

size and trends in the marine environment is logistically difficult and comparatively costly. 

Short-term loggerhead population trends have been determined at a limited number of neritic 

sites in the U.S. (Table 2). However, extrapolation of these localized trends to the broader 

population and relating localized trends at neritic sites to population trends at nesting beaches is 
I-12

a problem of scale and requires the integration of many representative foraging grounds 

throughout the population range (Bjorndal et al. 2005). 

Despite these problems, long-term in-water studies are needed in conjunction with surveys on 

nesting beaches to monitor population status and effectively track population changes, especially 

as recovery efforts are implemented and assessed. In addition to adding a vital component to 

monitoring trends in population numbers, in-water capture studies can provide information on 

sex ratios, population structure, genetic identities, health and occurrence of disease, behavior, 

survivorship, and growth. All of these factors must be determined for accurate population 

modeling and assessment, and in-water studies provide a means of empirically deriving these 

important population parameters. In-water studies of sea turtles in the U.S. have focused on 

relatively few geographic areas and most have not monitored trends in population numbers. This 

section provides a summary of in-water studies where loggerheads are regularly captured, and 

where efforts have been made to provide local indices of abundance. Caution must be exercised 

in evaluating results from these studies given the relative short-term duration of most of the 

studies, noted difficulties in comparisons of trend data across disparate sampling periods, 

changes in sampling methodologies and equipment, small study areas, and uncontrolled variables 

such as weather, sea-state, migration patterns, and shifts in loggerhead distributions. 
I-13

Table 2. Summary of loggerhead in-water population studies in the U.S. from which trend data 

have been reported. 

Location Methodology Study 

Period1

Trend 

Result2

Reference 

New York, inshore 

waters 

Fishery 

Dependent 

(pound nets) 

1987-2004 Declining Morreale et al. 2005 

Chesapeake Bay, VA Aerial Survey 1982-2004 Declining Mansfield 2006 

Pamlico Sound, NC Fishery 

Dependent 

(pound nets) 

1995-2003 Increasing Epperly et al. 2007 

Southeast U.S. Atlantic - 

SEAMAP 

Trawl 1990-2000 No trend NMFS 2001 

Southeast U.S. Atlantic Trawl 2000-2003 No trend Maier et al. 2004 

Mosquito Lagoon, FL Tangle Net 1977-2005

1995-2005

Declining 

No trend 

Jane Provancha, 

Dynamac Corporation, 

personal 

communication, 2006 

Indian River Lagoon, FL Tangle Net 1982-2005 No trend Ehrhart et al. 2007 

St. Lucie Nuclear Power 

Plant, FL 

Power Plant 

Intake 

Structures 

1977-2004 Increasing FPL and Quantum 

Resources, Inc. 2005 

Florida Bay, FL Sightings 2000-2006 No trend Barbara Schroeder, 

NMFS, personal 

communication, 2006 

1

 Study period does not imply continuous annual sampling, see project discussion for details. 

2

 See project discussion for potential biases, caveats, and details. 

New York 

In-water studies of juvenile sea turtles in New York inshore waters (including Long Island 

Sound, Peconic Bay, Shinnecock Bay) were initiated in 1987 and continued through 1992. 

Turtles were collected from established pound nets throughout Long Island Sound. Research 

resumed in 2002 using a subset of the pound nets sampled during the earlier study period. 

Comparisons across the two study periods reveal a sharp decline in the percentage of turtle 

captures that were loggerheads from 59% of total captures from 1987-1992 to less than 4% of 

total captures during 2002-2004. In addition to the relative proportions of loggerheads changing 

dramatically between the two study periods, the absolute number of loggerheads captured in the 

latter study also changed dramatically - only two loggerheads were captured over the entire 

three-year period. Potential explanations for this decline include major shifts in loggerhead 

foraging areas and/or increased mortality in pelagic or early benthic stage/age classes (Morreale 

et al. 2005).
I-14

Chesapeake Bay, VA 

The Chesapeake Bay is the largest estuary in the continental U.S. It lies adjacent to the Atlantic 

Ocean and is surrounded by Virginia and Maryland. The Chesapeake Bay's mainstem is 304 km 

long, extending from the Susquehanna River in the north to the Atlantic Ocean in the south. The 

Bay is 6.4 km wide at its narrowest point near Annapolis, Maryland, and 50 km wide at its 

widest point near the mouth of the Potomac River. The Bay hosts a seasonal population of 

loggerhead and Kemp’s ridley sea turtles (Lepidochelys kempii), of which 95% are subadult/benthic juveniles. The Virginia Institute of Marine Science (VIMS) has maintained 

stranding and live mark-recapture datasets since 1979 and aerial abundance datasets spanning 

between 1982-1985, 1994, and 2001-2004 (Mansfield and Musick 2006). The mark-recapture 

program has tagged over 850 individual turtles to date from local fishing gears and live 

strandings. Up to 20-25% of individuals captured by pound net were subsequently recaptured in 

the same gear type indicating strong foraging site fidelity relative to these fixed gears (Mansfield 

2006). Aerial surveys conducted from 2001-2004 indicated a 65% to 75% decline in the 

Chesapeake Bay sea turtle population since the 1980s (Mansfield 2006). 

Available prey items (e.g., blue crab and horseshoe crab) have declined significantly within the 

Bay since the 1980s (Lipcius and Stockhausen 2002). Gut content analyses of Virginia 

strandings indicate a significant shift in diet among loggerhead sea turtles over time (1980-1994, 

1997, and 2000-2002) from predominantly horseshoe crabs in the early to mid-1980s to blue 

crabs in the late 1980s and early 1990s, to mostly finfish in the late 1990s and early 2000s 

(Seney 2003, Seney and Musick 2007). These data suggest that turtles are foraging in greater 

numbers in or around fishing gears and on discarded bycatch (Seney 2003). The decline in 

observed sea turtle populations in the Bay may be related to this decline in prey with turtles 

redistributing outside of Bay waters. Replication of aerial surveys conducted in offshore areas 

by Keinath (1993) could provide additional information on observed declines in the Bay. 

Pamlico-Albemarle Estuarine Complex 

North Carolina's Pamlico-Albemarle Estuarine Complex is the largest estuarine system in the 

southeast U.S. and the third largest in North America (Gross 1972). The area encompasses 

several diverse estuarine habitats: open waters of the sounds, deeper central basins, embayments 

and tributary creeks, and shallow shelf areas containing seagrasses. This system is an important 

developmental habitat for loggerhead, green (Chelonia mydas), and Kemp’s ridley sea turtles 

(Epperly et al. 1995b). Loggerheads, present in the sounds from April through December, are 

incidentally captured in pound nets. Population studies were initiated in 1995 to develop an 

index of sea turtle abundance and monitor long-term trends at this foraging site (Epperly et al. 

2000). Catch rates of loggerheads in pound nets were derived for six sampling years (1995, 

1996, 1997, 2001, 2002, 2003) from 1995 to 2003 (Epperly et al. 2007). Loggerhead catch rates 

increased significantly during the duration of the study (Epperly et al. 2007). 

In addition to the index of abundance surveys, pound nets in Pamlico and Core Sounds have 

been systematically sampled several times per week for 6 months/year from May to December in 

recent years. Turtles are measured and PIT and flipper tagged, and blood and skin samples are 

collected from loggerheads to investigate growth rates (Braun-McNeill et al. 2002, NMFS 2001), 
I-15

sex ratios (Braun-McNeill et al. 2004, 2007a), population structure (Bass et al. 1998, RankinBaransky et al. 2001), health status (Harms et al. 2002, 2006a, 2006b; Stamper et al. 2005; 

Valentine et al. 2007), tag retention (Braun-McNeill et al. 2002), survival (Sasso et al. 2006), 

abundance (Sasso et al. 2007), and site fidelity (Avens et al. 2003). 

Southeast U.S. Atlantic 

Maier et al. (2004) collected baseline data on sea turtle abundance along the southeast U.S. coast 

using bottom trawl gear (2-20 m nets; 16 cm stretch mesh) from 2000 through 2003. Between 

602 and 709 stations were sampled annually from Georgetown, South Carolina, to St. Augustine, 

Florida, in water depths from 4.8 m to 14.9 m. No difference was found in loggerhead catch per 

unit effort among survey years (2000-2003). Loggerhead catch rates were also compared with 

fishery-dependent data collected on shrimp trawlers from 1979 through 1981 by Henwood and 

Stuntz (1987). Loggerhead capture rates were found to be approximately one order of magnitude 

higher in the present study than in the early 1980s. However, the authors warn that direct 

comparisons should be viewed with caution because net mesh size and tow speeds varied 

between studies. Both variables are known to influence capture rates. Despite these differences, 

the authors suggest that loggerheads were substantially more abundant during the study (2000-

2003) than in the early 1980s (Maier et al. 2004). 

The Southeast Area Monitoring and Assessment Program - South Atlantic Surveys (SEAMAP) 

program is an ongoing trawl survey conducted by SCDNR to assess the status of finfish, crab, 

shrimp, sea turtle, and squid populations in the coastal waters of the southeast U.S. Samples 

were taken from Cape Hatteras, North Carolina, to Cape Canaveral, Florida, using paired bottom 

trawls (two 22.9 m nets; 4.1 cm mesh) in depths ranging from 4 to 10 m. Between 78 and 102 

stations were sampled during three seasons from April through November. SEAMAP sea turtle 

capture data from 1990 to 2000 were analyzed by NMFS Southeast Fisheries Science Center 

(NMFS 2001). Sea turtle capture rates were generally found to be low, and no significant trend 

was detected in loggerhead abundance during the study period. However, the authors caution 

that the power to detect a trend in loggerhead abundance was poor due to the short time series 

(11 years) and high variability in loggerhead capture rates. 

Mosquito Lagoon, FL 

Mosquito Lagoon, located in Brevard and Volusia counties on the east-central coast of Florida, is 

an elongate shallow estuary 54 km long and 4 km wide at its widest point. The lagoon is 

bordered on the east by barrier islands and on the west by the Florida mainland. In the late 

1970s, baseline data were collected on sea turtle life history, abundance, distribution, and 

behavior in the southern reaches of Mosquito Lagoon. Catch per unit effort (CPUE) derived for 

loggerheads over the 2-year study period (1977-1978) was 0.21 loggerheads per km-net hour 

(339 km-net hours) (Mendonça and Ehrhart 1982). In 1995, a new research project using the 

same capture methodology (large mesh tangle nets) and sampling locations was initiated to 

provide updated information on the life history, distribution, abundance, and movement of sea 

turtles within this estuarine ecosystem (Jane Provancha, Dynamac Corporation, personal 

communication, 2006). Captured turtles are measured, flipper and PIT (passive integrated 

transponder) tagged, blood sampled, externally examined, photographed, and released. Catch 
I-16

per unit effort is derived annually; CPUE for loggerheads over the 11-year study period was 0.07 

loggerheads per km-net hour (311 km-net hours). A comparison of the CPUEs derived from 

these two studies indicates a decrease in the capture frequency of loggerheads from the late 

1970s to the mid 1990s and early 2000s. However, caution must be exercised in directly 

comparing these results. Despite using similar capture techniques, the two studies, initiated 

almost 20 years apart, had very different total netting effort (i.e., the earlier study resulted in 339 

km-net-hours over 2 years versus 328 km-net-hours over 12 years in the latter study). These 

differences could account for the observed CPUE decline between the two studies, or the decline 

may be real. There is no statistically significant trend in loggerhead CPUE over the 11-year 

sampling period in the more recent study (1995-2006) (Jane Provancha, Dynamac Corporation, 

personal communication, 2006). 

Central Indian River Lagoon, FL 

The Indian River Lagoon system extends 260 km along the Atlantic coast of Florida from Ponce 

de Leon Inlet in Volusia County to Jupiter Inlet in northern Palm Beach County. In 1982, the 

University of Central Florida Marine Turtle Research Group began a study of the life history, 

population structure, and relative abundance of sea turtle populations in the central region of the 

Indian River Lagoon within a large embayment 3 km south of Sebastian Inlet and within 1 km of 

the east shore in Indian River County. One of the primary purposes of the study is to monitor 

long-term trends in relative abundance of loggerheads using large-mesh tangle net capture 

methodologies. Annual CPUE is derived based on standard capture methodologies and similar 

year-to-year sampling effort. Captured turtles are measured, flipper and PIT tagged, 

photographed, blood sampled, assessed for signs of fibropapilloma tumors, and released. There 

was no statistically significant trend detected in loggerhead CPUE over the 23-year period from 

1982-2005 (Ehrhart et al. 2007). 

St. Lucie Power Plant, FL 

The Florida Power and Light Company's St. Lucie Nuclear Power Plant, an electric generating 

station located on Hutchinson Island in St. Lucie County, Florida, has provided an opportunity to 

monitor loggerheads from waters adjacent to its cooling-canal intake. The power plant draws 

cooling water from the Atlantic Ocean adjacent to nearshore hardbottom, internesting habitat, 

and migratory routes. The water is drawn through large pipes (two with 3.7 m and one with 4.9 

m diameter) at a moderate velocity (<30 cm/sec) into a long intake canal. Loggerheads that 

swim beneath a velocity cap covering the intake are drawn into the intake canal where they are 

manually captured and returned to the ocean. Since the plant became operational in 1976, turtles 

trapped in the intake canal have been systematically captured, measured, weighed, tagged, 

examined for overall condition, and released. Since 1977, the first full year of plant operation, 

the number of loggerheads captured each year ranged from 62 in 1981 to 624 in 2004 (total 

captures = 6,482, 1976-2005). Loggerheads captured at the plant range in size from 39 to 112 

cm minimum carapace length, which includes juveniles and adults that are foraging, migrating, 

or between nesting attempts at nearby nesting beaches. Total annual captures of loggerheads has 

been increasing (FPL and Quantum Resources, Inc. 2005), with high annual variation in 

captures. Biases associated with long-term capture trends include variable local habitat 
I-17

conditions, prey abundance and distribution, migration paths, condition of the intake pipes and 

caps, and power plant flow-rate changes. 

Florida Bay, FL

Population studies of sea turtles in Florida Bay (southern terminus of the Florida peninsula) were 

initiated in 1990 in the central western portion of the Bay. Both juvenile and adult loggerheads 

are captured by hand during annual sampling events; approximately 750 individual loggerheads 

have been captured to date. Sampling methodologies introduced in 2000 were designed to 

monitor population trends within the study area using shipboard sightings per unit effort (SPUE) 

as an annual index of abundance. There was no significant difference in loggerhead SPUE over 

the 7-year period (2000-2006) (Barbara Schroeder, NMFS, personal communication, 2007). 

F. LIFE HISTORY AND HABITAT

This section provides a general overview of loggerhead life history and habitat use. Loggerheads 

have a complex life history that encompasses terrestrial, nearshore, and open ocean habitats. 

Key life history characteristics are summarized in Tables 3 and 4. 
I-18

Table 3. Typical values of life history parameters for loggerheads nesting in the U.S. 

Life History Parameter Data

Clutch size 100-126 eggs1

Egg incubation duration (varies depending on time of year 

and latitude) 42-75 days2,3 

Pivotal temperature (incubation temperature that produces an 

equal number of males and females) 29.0 ̊C5

Nest productivity (emerged hatchlings/total eggs) x 100 

(varies depending on site specific factors) 45-70%2,6

Clutch frequency (number of nests/female/season) 3-5.5 nests7

Internesting interval (number of days between successive 

nests within a season) 12-15 days8

Juvenile (<87 cm CCL) sex ratio 65-70% female4

Remigration interval (number of years between successive 

nesting migrations) 2.5-3.7 years9

Nesting season late April-early September 

Hatching season late June-early November 

Age at sexual maturity 32-35 years10

Life span >57 years11 

1

 Dodd 1988. 

2

 Dodd and Mackinnon (1999, 2000, 2001, 2002, 2003, 2004). 

3

 Blair Witherington, FFWCC, personal communication, 2006 (information based on nests 

monitored throughout Florida beaches in 2005, n=865). 

4

 National Marine Fisheries Service (2001); Allen Foley, FFWCC, personal communication, 

2005. 

5

 Mrosovsky (1988). 

6

 Blair Witherington, FFWCC, personal communication, 2006 (information based on nests 

monitored throughout Florida beaches in 2005, n=1,680). 

7

 Murphy and Hopkins (1984); Frazer and Richardson (1985); Ehrhart, unpublished data; 

Hawkes et al. 2005; Scott 2006; Tony Tucker, Mote Marine Laboratory, personal 

communication, 2008. 

8

 Caldwell (1962), Dodd (1988). 

9

 Richardson et al. (1978); Bjorndal et al. (1983); Ehrhart, unpublished data. 

10 Melissa Snover, NMFS, personal communication, 2005; see Table A1-6. 

11 Dahlen et al. (2000). 
I-19

Table 4. Reported size distributions, stage durations, annual survival probabilities, and growth 

rates for loggerheads nesting in the U.S. See citations for details regarding values reported. 

Life Stage Size Stage 

Duration 

Annual 

Survival 

Probabilities 

Growth Rate 

Hatchling 4 cm CCL1 1-5 days2 -- 

Post-hatchling 4-6 cm CCL4 <6 months5 Year 1 = 0.73,6

10.8 cm/yr5

Oceanic juvenile 8.5-64 cm CCL5,7 7-11.5 years8 0.96,9 2.9-5.4 cm/yr10

Neritic juvenile 46-87 cm CCL11 13-20 years12 0.7-0.813 1.8-2.1 cm/yr14

Adult female >87 cm CCL1,15 >25 years16 0.96,17 0.6 cm/yr18

Adult male >83 cm CCL19 -- -- 0.1 cm/yr20

1

 Ehrhart (1980). 

2

 Duration from hatching out of the egg until entering the water. 

3

 Hatchling and post-hatchling stages are combined because estimates of survival probabilities 

from stage-based models are based on annual rates; these two stages occur within the first 

year. Stage based survival estimates are based on similar size classes used in the matrix 

population models (Heppell et al. 2003b) and differ slightly with those presented in this table, 

which are based on empirical data. 

4

 Blair Witherington, FFWCC, personal communication, 2006. 

5

 Bjorndal et al. (2000). 

6

 Heppell et al. (2003b). 

7

 Bjorndal et al. (2003b).

8

 Bjorndal et al. (2003a) (7 years: 8.5-46 cm CCL; 11.5 years: 8.5-64 cm CCL).

9

 Bjorndal et al. (2003b) (estimated annual survivorship for years 2-6).

10 Snover (2002) (mean 2.9 cm SCL/yr); Bjorndal et al. (2003a) (mean 5.4 cm CCL/yr). 

11 Bjorndal et al. (2001). 

12 Bjorndal et al. (2001) (13 years: 64-87 cm CCL; 20 years: 46-87 cm CCL).

13 Heppell et al. (2003b). 

14 Bjorndal et al. (2001) (mean = 1.8 cm CCL/yr (64-87 cm CCL); mean = 2.1 cm CCL/yr (46-

87 cm CCL)); Snover (2002) (mean = 2.1 cm SCL/yr (45.1-80.6 cm SCL)).

15 Witherington (1986), Byrd et al. (2005). 

16 Dahlen et al. (2000). 

17 Hedges (2007). 

18 Bjorndal et al. (1983).

19 Schroeder, unpublished data from Florida Bay (based on tail lengths >40 cm from plastron to 

tip of tail). 

20 Schroeder, unpublished data from Florida Bay. 
I-20

 

The three basic ecosystems in which loggerheads live are the: 

1. Terrestrial zone (supralittoral) - the nesting beach where both oviposition (egg laying) 

and embryonic development and hatching occur. 

2. Neritic zone - the nearshore marine environment (from the surface to the sea floor) where 

water depths do not exceed 200 meters. The neritic zone generally includes the 

continental shelf, but in areas where the continental shelf is very narrow or nonexistent, 

the neritic zone conventionally extends to areas where water depths are less than 200 

meters. 

3. Oceanic zone - the vast open ocean environment (from the surface to the sea floor) where 

water depths are greater than 200 meters. 

Within the two marine ecosystems: 

• Organisms are pelagic if they occupy the water column, but not the sea floor, in either the 

neritic zone or oceanic zone. Organisms are epipelagic if they occupy the upper 200 meters 

in the oceanic zone. 

• Organisms on the sea floor in either the neritic zone or oceanic zone are described as benthic 

or demersal. 

Bolten (2003) reviews this terminology with respect to sea turtle life history; see Lalli and 

Parsons (1997) for review of basic oceanographic terminology. 

The generalized life history of Atlantic loggerheads is shown in Figure 8 (from Bolten 2003). 

The life history stages are described in the following sections. 
I-21

NERITIC ZONE

Reproductive Stage

Internesting Habitat

TERRESTRIAL ZONE

Nesting Beach (supralittoral)

Oviposition

Egg, Embryo, Hatchling Stage

OCEANIC & NERITIC ZONES

Juvenile Transitional Stage

NERITIC ZONE

Neritic Juvenile Stage

Adult Stage

Reproductive Stage

Migration Corridors

Breeding Habitats

OCEANIC ZONE

Oceanic Juvenile Stage

NERITIC ZONE

Hatchling Swim Frenzy Stage

Post-Hatchling Transitional Stage

Pelagic (Epipelagic)

(Primary Habitat and Foraging Behavior)

Epibenthic / Demersal

Banks and Seamounts

Pelagic

Epibenthic / Demersal

(Primary Habitat and Foraging Behavior)

Seasonal Movements (North & South)

Developmental Movements

NERITIC &

OCEANIC ZONES

Figure 8. Generalized life history of North Atlantic loggerhead sea turtles (Bolten 2003). 
I-22

F.1. TERRESTRIAL ZONE (NESTING BEACH)

Nesting Habitat 

Loggerheads nest on ocean beaches and occasionally on estuarine shorelines with suitable sand. 

Nests are typically laid between the high tide line and the dune front (Routa 1968, Witherington 

1986, Hailman and Elowson 1992). Wood and Bjorndal (2000) evaluated four environmental 

factors (slope, temperature, moisture, and salinity) and found that slope had the greatest 

influence on loggerhead nest-site selection on a beach in Florida. Loggerheads appear to prefer 

relatively narrow, steeply sloped, coarse-grained beaches, although nearshore contours may also 

play a role in nesting beach site selection (Provancha and Ehrhart 1987). A review of nest site 

selection studies found no consistency among factors analyzed and preference exhibited by 

loggerhead females for particular nest locations (Miller et al. 2003). 

Nest Characteristics/Requirements 

Sea turtle eggs require a high-humidity substrate that allows for sufficient gas exchange for 

development (Miller 1997, Miller et al. 2003). Mean clutch size varies from about 100 to 126 

eggs along the southeast U.S. coast (Dodd 1988). Loggerhead nests incubate for variable periods 

of time. The length of the incubation period (commonly measured from the time of egg 

deposition to hatchling emergence) is inversely related to nest temperature, such that between 

26o

C and 32oC, a change of 1oC adds or subtracts approximately 5 days (Mrosovsky 1980). 

The warmer the sand surrounding the egg chamber, the faster the embryos develop (Mrosovsky 

and Yntema 1980). Sand temperatures prevailing during the middle third of the incubation 

period also determine the sex of hatchling sea turtles (Mrosovsky and Yntema 1980). Incubation 

temperatures near the upper end of the tolerable range produce only female hatchlings while 

incubation temperatures near the lower end of the tolerable range produce only male hatchlings. 

The pivotal temperature (i.e., the incubation temperature that produces equal numbers of males 

and females) in loggerheads is approximately 29o

C (Limpus et al. 1983, Mrosovsky 1988, 

Marcovaldi et al. 1997). Moisture conditions in the nest influence incubation period, hatching 

success, and hatchling size (McGehee 1990, Carthy et al. 2003). 

Hatchling Emergence Behavior 

Loggerhead hatchlings pip and escape from their eggs over a 1- to 3-day interval and move 

upward and out of the nest over a 2- to 4-day interval (Christens 1990). The time from pipping 

to emergence ranges from 4 to 7 days with an average of 4.1 days (Godfrey and Mrosovsky 

1997). Hatchlings emerge from their nests en masse almost exclusively at night, and presumably 

using decreasing sand temperature as a cue (Hendrickson 1958, Mrosovsky 1968, Witherington 

et al. 1990). Moran et al. (1999) concluded that a lowering of sand temperatures below a critical 

threshold, which most typically occurs after nightfall, is the most probable trigger for hatchling 

emergence from a nest. After an initial emergence, there may be secondary emergences on 

subsequent nights (Carr and Ogren 1960, Witherington 1986, Ernest and Martin 1993, Houghton 

and Hays 2001). 
I-23

Hatchlings use a progression of orientation cues to guide their movement from the nest to the 

marine environments where they spend their early years (Lohmann and Lohmann 2003). 

Hatchlings first use light cues to find the ocean. On naturally lighted beaches without artificial 

lighting, ambient light from the open sky creates a relatively bright horizon compared to the dark 

silhouette of the dune and vegetation landward of the nest. This contrast guides the hatchlings to 

the ocean (Daniel and Smith 1947, Limpus 1971, Salmon et al. 1992, Witherington 1997, 

Witherington and Martin 1996, Stewart and Wyneken 2004). 

F.2. NERITIC ZONE: HATCHLING SWIM FRENZY STAGE AND POST-HATCHLING 

TRANSITIONAL STAGE

Swim Frenzy 

Immediately after hatchlings emerge from the nest, they begin a period of frenzied activity. 

During this active period, hatchlings move from their nest to the surf, swim and are swept 

through the surf zone, and continue swimming away from land for approximately 20 to 30 hours 

(Carr and Ogren 1960; Carr 1962, 1982; Wyneken and Salmon 1992; Witherington 1995). 

Orientation cues used by hatchlings as they crawl, swim through the surf, and migrate offshore 

are discussed in detail by Lohmann and Lohmann (2003). Mortality from fish predation was 5 of 

74 hatchlings swimming within approximately 1 km from the beach and within 2 hours of 

entering the Atlantic at three Florida locations (Witherington and Salmon 1992). Predation over 

reefs and at hatcheries may be higher (Wyneken and Salmon 1996, Wyneken et al. 1998). 

Observations of loggerheads swimming in a laboratory setting (Wyneken and Salmon 1992) and 

at sea (Witherington 1995) reveal a pronounced reduction in activity after 20 to 30 hours postemergence, although oriented swimming continues for several days afterward. In addition to 

swimming, hatchlings may stop briefly to move within the floating seaweeds in the genus 

Sargassum located in their path (Witherington and Salmon 1992, Witherington 1995). 

Hatchlings swimming from land rely on an approximately 5-day store of energy and nutrients 

within their retained yolk sac (Kraemer and Bennett 1981). 

Post-hatchling Transition 

Neonate loggerheads that have migrated away from land differ from swim frenzy stage 

hatchlings in that they are infrequently low-energy swimmers and they have begun to feed, no 

longer relying on their retained yolk (Witherington 2002). As post-hatchlings, loggerheads are 

pelagic and are best known from neritic waters along the continental shelf. This neritic posthatchling stage is weeks or months long (Witherington 2002) and may be a transition to the 

oceanic stage that loggerheads enter as they grow and are carried within ocean currents (Bolten 

2003). 

Post-hatchling loggerheads inhabit areas where surface waters converge to form local 

downwellings (Witherington 2002). These areas are characterized by linear accumulations of 

floating material, especially Sargassum, and are common between the Gulf Stream and the 

southeast U.S. coast, and between the Loop Current and the Florida coast in the Gulf of Mexico. 

Post-hatchlings within this habitat are observed to be low-energy float-and-wait foragers that 
I-24

feed on a wide variety of floating items (Witherington 2002). Witherington (2002) found that 

small animals commonly associated with the Sargassum community, such as hydroids and 

copepods, were most commonly found in esophageal lavage samples. As post-hatchlings, 

loggerheads may linger for months in waters just off the nesting beach or become transported by 

ocean currents within the Gulf of Mexico and North Atlantic. 

F.3. OCEANIC ZONE: JUVENILE STAGE

The biology of the oceanic juvenile stage (which will be referred to as the oceanic stage) has 

recently been reviewed by Bolten (2003). 

Habitat Description 

The oceanic stage begins when loggerheads enter the oceanic zone and, in the North Atlantic, 

has been primarily studied in the waters around the Azores and Madeira (Bolten 2003). Other 

populations exist (e.g., in the region of the Grand Banks off Newfoundland), but data on these 

populations are very limited. Turtle movements in this stage are both active and passive relative 

to surface and subsurface oceanic currents and winds; turtles may use bathymetric features for 

orientation (ACCSTR, unpublished data). These turtles are epipelagic, spending 75% of their 

time in the top 5 meters of the water column. Eighty percent of the dives are between 2 to 5 

meters with the remainder of the dives distributed throughout the top 100 meters of the water 

column; occasionally dives are greater than 200 meters (ACCSTR, unpublished data). In the 

vicinity of seamounts, oceanic banks or ridges that come close to the surface, or around oceanic 

islands, loggerheads may become epibenthic/demersal by feeding or spending time on the 

bottom (Bolten 2003). 

In Azorean waters, satellite telemetry data and flipper tag returns suggest a long period of 

residency (Bolten 2003), whereas turtles appear to be moving through Madeiran waters 

(Dellinger and Freitas 2000). This may not be surprising when one considers the physical 

oceanographic aspects of the regions. The Azorean region is characterized by a complexity of 

seamounts, banks, and the Mid-Atlantic Ridge, which results in a complexity of eddies and 

convergent zones – prime habitats for oceanic-stage loggerheads. Seamounts are less prevalent 

in the Madeiran region. 

Diet 

The diet of oceanic-stage loggerheads has been poorly studied in the Atlantic basin. They are 

primarily carnivorous, although they do ingest some vegetation (Bjorndal 1997). Loggerheads in 

this life stage consume primarily coelenterates (e.g., sea jellies, hydroids) and salps, but also 

ingest a range of organisms including the pelagic snail Janthina spp., barnacles (Lepas spp.), and 

crabs (see Bjorndal 1997 for review). 

Relationship of Oceanic Juvenile Populations to Rookery Sources 

Carr (1986) and later Bolten et al. (1993) used the comparison of size frequency distributions to 

suggest that loggerheads found in the oceanic zone around the Azores were an earlier life stage 
I-25

of the larger turtles in the neritic waters of the western North Atlantic. The relationship between 

the little loggerheads in the oceanic zone and the larger-sized neritic loggerheads in the 

Northwest Atlantic was further supported by recaptures of turtles tagged in the oceanic zone and 

recaptured in the neritic zone of the Northwest Atlantic (Bolten 2003).

With the development of molecular genetic tools (e.g., mitochondrial DNA sequence analyses), 

the relative contributions of rookeries to mixed populations of oceanic-stage loggerheads could 

be evaluated (Bowen 1995, 2003). After the Atlantic rookeries were genetically characterized by 

Encalada et al. (1998), Bolten et al. (1998) were able to demonstrate that the oceanic-stage 

loggerheads in the waters around the Azores and Madeira were primarily from rookeries in the 

southeast U.S. (90%) and Mexico (10%). Based on flipper tag returns (Bolten 2003, Bolten et 

al. 1992) and on molecular genetic studies (Laurent et al. 1993, 1998), movement of little 

loggerheads from Northwest Atlantic rookeries and Azorean waters into the western 

Mediterranean is probably more common than originally thought. A portion of the juveniles 

found foraging in both the eastern and western basins of the Mediterranean Sea originate from 

the western Atlantic population (Basso and Cocco 1986, Bolten et al. 1992, Manzella et al. 1988, 

Carreras et al. 2006). Approximately 45-47% of the juvenile loggerheads in both the western 

and eastern basins are derived from the western Atlantic (Laurent et al. 1998). These 

loggerheads from the Northwest Atlantic apparently leave the Mediterranean before they mature 

and reproduce (Laurent et al. 1998).

Size Distribution 

The size distribution of oceanic-stage loggerheads in the waters around the Azores ranges from 

8.5 to 82 cm curved carapace length (CCL) with a mean and standard deviation of 34.5 ± 12.6 

cm (Bolten 2003). Most turtles in this area (99.3% of the sample) range from 8.5 to 64 cm (n = 

1,680, mean = 34.2, SD = 12.2; ACCSTR, unpublished data). This size distribution is not 

significantly different from another nearby oceanic-zone aggregation in the waters around 

Madeira (Bolten et al. 1993). For this recovery plan, the size range of the oceanic stage is 

defined as 8.5 to 64 cm CCL.

Growth Rates 

Bjorndal et al. (2003a), using skeletochronology and longitudinal growth analyses, estimated a 

mean growth rate of 5.4 cm CCL per year (SD = 1.8 cm). The size-specific growth rate function 

from length-frequency analyses is consistent with growth rates calculated from recaptures of 

tagged turtles (summarized in Bjorndal et al. 2000). Zug et al. (1995) evaluated the somatic 

growth rates of oceanic-stage loggerheads in the Pacific using skeletochronology. The agespecific growth function for the Pacific was similar in shape but with a slower growth rate than 

those for the Atlantic (Bjorndal et al. 2003a).

Duration of the Oceanic Juvenile Stage 

Length-frequency analyses (Bjorndal et al. 2000) and skeletochronology (Bjorndal et al. 2003a) 

were used to estimate the duration of the oceanic stage as 7 to 11.5 years depending on the size 

of the turtles when they leave the oceanic zone (46 to 64 cm CCL). Based on a 
I-26

skeletochronology study of neritic-stage loggerheads, Snover et al. (2000) concluded that 

loggerheads are approximately 52 cm SCL when they settle in the neritic zone off the U.S. 

Atlantic coast. This value of 52 cm SCL is similar to the value of 53 cm CCL at the intersection 

of the length frequency distributions of the oceanic stage and the neritic stage, which is 

equivalent to 8.2 years duration in the oceanic stage (Bjorndal et al. 2000).

Survival Probabilities 

Survival probabilities for the oceanic stage have been generated as fitted values in demographic 

models rather than direct estimates (Chaloupka 2003, Heppell et al. 2003b). Bjorndal et al. 

(2003b) used catch-curve analyses to directly estimate survival probabilities of oceanic-stage 

loggerheads in the waters around the Azores. At ages before loggerheads begin to emigrate from 

the oceanic zone (2 to 6 years of age), the estimate of annual survival probability is 0.911. 

Turtles that are 2 to 6 years of age (18 to 44 cm CCL, Bjorndal et al. 2003b) are not generally 

caught in the eastern Atlantic longline fishery (Bolten 2003). After emigration begins at 7 years 

of age, the estimate of annual survival probability drops to 0.643, which is confounded by 

emigration but includes mortality from bycatch in longline fisheries (Bjorndal et al. 2003b). 

Using satellite telemetry, Sasso and Epperly (2007) calculated a survival rate of 0.81 for juvenile 

loggerheads (mean of 52 cm SCL) off the Grand Banks and Azores. Estimates of mortality prior 

to age 2 are not available, but mortality may be high during this stage both from natural 

predation and stochastic events that result in little loggerheads being passively swept into 

inappropriate habitats, such as the waters around Labrador or the waters around the British Isles 

(Carr 1986, Hays and Marsh 1997). 

Juvenile Transition from Oceanic to Neritic Zone

The shift from the oceanic to the neritic zone is a dramatic one. As such, there is probably a 

period of transition, perhaps in both behavior and morphology. Kamezaki and Matsui (1997) 

discuss specific allometric relationships that change during the juvenile transitional stage, which 

are related to changes in foraging behavior (e.g., epipelagic versus benthic). The geographic 

regions where the transitional stages occur may be in regions where major oceanic currents 

approach or enter the neritic zone. The broad size range over which the turtles in the Atlantic 

leave the oceanic zone and enter the neritic zone (Bjorndal et al. 2000, 2001) may also suggest 

that this transitional stage is of variable duration. Factors that may drive this habitat shift (e.g., 

differential growth rates) are discussed in Bolten (2003). Size frequency distributions of 

populations that fall between the oceanic stage and the neritic juvenile stage may support the 

existence of this transitional stage. The mean size of 53 cm CCL of a population off the Atlantic 

coast of Morocco is the estimated mid-point of the size distributions for the juvenile transitional 

stage and suggests that this population may represent a transitional stage between the oceanic 

and neritic stages (Tiwari et al. 2002). A juvenile transitional stage for the Mediterranean 

populations has also been suggested (Laurent et al. 1998). As Figure 8 indicates, if the oceanicneritic transition is not complete, loggerheads may return to the oceanic zone. For example, a 73 

cm SCL loggerhead tagged along the Atlantic coast of Florida was recaptured in the Azores 

(Eckert and Martins 1989), and McClellan and Read (2007) describe periodic movements by 

juveniles between neritic and oceanic habitats. If juvenile loggerheads make multiple loops in 
I-27

the Atlantic gyre system rather than a single developmental loop, this could also result in 

periodic movements between the oceanic and neritic zones (Witzell 2002, Bolten 2003). 

F.4. NERITIC ZONE: JUVENILE STAGE

Habitat Description 

Juvenile stage loggerheads in the North Atlantic commonly inhabit continental shelf waters from 

Cape Cod Bay, Massachusetts, south through Florida, The Bahamas, Cuba, and the Gulf of 

Mexico. Juvenile loggerheads are also found in lower abundance elsewhere in the Greater 

Caribbean (e.g., Panama [Engstrom et al. 2002]). Estuarine waters, including areas such as Long 

Island Sound, Delaware Bay, Chesapeake Bay, Pamlico and Core Sounds, the large open sounds 

of South Carolina and Georgia, Mosquito and Indian River Lagoons, Biscayne Bay, Florida Bay, 

and numerous embayments fringing the Gulf of Mexico, comprise important inshore habitat 

(Musick and Limpus 1997, Spotila et al. 1997, Hopkins-Murphy et al. 2003). Along the Atlantic 

and Gulf of Mexico shoreline, essentially all shelf waters are inhabited by loggerheads. Longterm in-water studies indicate that juvenile loggerheads reside in particular developmental 

foraging areas for many years. Seasonal movements of juvenile loggerheads along the Atlantic 

coast, from more northerly resident areas during warmer months to more southerly or offshore 

resident areas during colder months, have been well documented. Results from satellite 

telemetry have demonstrated that some juveniles may return to the oceanic zone particularly in 

the winter (Morreale and Standora 2005, McClellan and Read 2007, Mansfield 2006). 

Diet 

Juvenile stage loggerheads feed on a wide variety of organisms inhabiting the neritic zone. Diet 

studies focused on North Atlantic juvenile stage loggerheads indicate that benthic invertebrates, 

notably mollusks and benthic crabs, are the primary food items (Burke et al. 1993, Youngkin 

2001, Seney 2003). In south Texas, sea pens (a colonial coral) were the most common prey 

item, followed by benthic crabs (Plotkin et al. 1993). Seasonal dietary shifts with changing prey 

abundance and/or geographic differences in prey selection have been documented (Plotkin et al. 

1993, Ruckdeschel and Shoop 1988, Youngkin 2001). Youngkin (2001) found that discarded 

fish bycatch, from nearshore shrimp trawl fishing was commonly ingested by juvenile 

loggerheads. Gut content analyses of loggerheads in Chesapeake Bay, Virginia, by Seney and 

Musick (2007) documented a shift in loggerhead prey items from predominantly horseshoe crabs 

(Limulus polyphemus) during the early to mid-1980s, to predominantly blue crabs during the 

1980s, to finfish discarded by fisheries in the mid-1990s and in 2000-2002.

Relationship of Neritic Juvenile Populations to Rookery Sources 

The development of molecular genetic tools (e.g., mtDNA sequence analyses) has provided a 

basis for evaluating the relationship of neritic juvenile populations to rookery sources (see 

Bowen et al. 2004 for a review). Two factors may explain the genetic composition of neritic 

juvenile foraging populations: population size of source rookeries and proximity to these 

rookeries. There is a significant correlation between the genetic composition of neritic juvenile 

populations and adjacent nesting populations that provides evidence for juvenile homing to natal 
I-28

regions (Bowen et al. 2004). Results from Bass et al. (2004) for a North Carolina foraging 

assemblage also support juvenile homing to natal regions. There have been new developments 

in statistical modeling of mixed foraging populations (Bolker et al. 2003, 2007; Okuyama and 

Bolker 2005), as well as more complete rookery sampling (e.g., Cape Verde Islands and The 

Bahamas) (ACCSTR, unpublished data) and increased sampling of southeast U.S. rookeries 

(ACCSTR, unpublished data). These new statistical models and more complete rookery samples 

will provide a better basis for analyzing source rookeries for neritic juvenile populations. 

Size Distribution 

At about 46 cm CCL, oceanic juveniles begin to leave the oceanic habitat for the neritic habitat 

(Bjorndal et al. 2000, 2003a; Bolten 2003). By about 65 cm CCL, almost all of the juveniles 

have left the oceanic habitat. For the purposes of this recovery plan, the size range of the neritic 

juvenile stage is designated as 46-87 cm CCL. However, due to natural variations in the life 

history of the loggerhead, turtles smaller than 46 cm CCL may occur in the neritic habitat, turtles 

greater than 87 cm CCL may still not be sexually mature, and there is some overlap between the 

size distribution of oceanic and neritic juvenile stages (see Section F.3. above). 

Growth Rates 

Several studies have reported growth rates from juvenile loggerheads in neritic habitats 

(summarized in Bjorndal 2003, NMFS 2001). Published estimates for growth, based on carapace 

length for juvenile loggerheads in coastal waters of the U.S., are highly variable. Much of the 

variation is due to differences in body size and environment (e.g., water temperature). In 

addition, most studies suffer from very small sample sizes. Based on two studies with large 

sample sizes (Bjorndal et al. 2001 used length-frequency analyses; Snover 2002 used 

skeletochronology), the average growth rates for neritic juvenile turtles are 1.8 to 2.1 cm per year 

(see Table 4). 

Duration of the Neritic Juvenile Stage 

Several estimates of the duration of the neritic juvenile stage have been generated (summarized 

in Heppell et al. 2003a, NMFS 2001) employing a variety of techniques including markrecapture, length frequency, and skeletochronology. These estimates are difficult to compare 

because they are based on different size ranges for the neritic juvenile stage. The duration from 

recruitment to 87 cm CCL is estimated as 13 to 20 years depending on whether loggerheads 

recruit to neritic habitats at a size of 64 or 46 cm CCL, respectively (Bjorndal et al. 2001). 

Loggerhead matrix models generated estimates of 14 to 24 years for neritic juvenile loggerheads 

ranging from 45 to 92 cm CCL (Heppell et al. 2003b). 

Survival Probabilities 

The first survival probabilities for neritic stage loggerheads were estimated by Frazer (1987) 

using a catch curve analysis. Survival probabilities have recently been updated using new sizeat-age curves based on improved data from skeletochronology and mark-recapture (NMFS 

2001). Annual survival probabilities for neritic juvenile loggerheads were estimated to be 0.7-
I-29

0.8 (Heppell et al. 2003b). Using a mark recapture model, Sasso et al. (2006) estimated annual 

survival probability as 0.81 for loggerheads seasonally inhabiting Core Sound, North Carolina. 

F.5. NERITIC ZONE: ADULT STAGE

Habitat Description 

Habitat preferences of non-nesting adult loggerheads in the neritic zone differ from the juvenile 

stage in that relatively enclosed, shallow water estuarine habitats with limited ocean access are 

less frequently used. Areas such as Pamlico Sound and the Indian River Lagoon, regularly used 

by juveniles, are only occasionally frequented by adult loggerheads. Other estuarine areas, such 

as Chesapeake Bay in the northeast U.S., are more frequently used by adults during warmer 

seasons (John Musick, VIMS, personal communication, 2008). Shallow water habitats with 

large expanses of open ocean access, such as Florida Bay, provide year-round resident foraging 

areas for significant numbers of male and female adult loggerheads. Offshore, adults primarily 

inhabit continental shelf waters, from New York south through Florida, The Bahamas, Cuba, and 

the Gulf of Mexico (Schroeder et al. 2003). Seasonal use of mid-Atlantic shelf waters, 

especially offshore New Jersey, Delaware, and Virginia, during summer months and offshore 

shelf waters, such as Onslow Bay (off the North Carolina coast), during winter months has been 

documented for the Northern Recovery Unit (Hawkes et al. 2007; GDNR, unpublished data; 

SCDNR, unpublished data). Shelf waters along the west Florida coast, The Bahamas, Cuba, and 

the Yucatán Peninsula have been identified, using satellite telemetry, as important resident areas 

for Peninsular Florida Recovery Unit adult female loggerheads (Foley et al. in press). 

Diet 

Adult loggerheads feed on a wide variety of organisms inhabiting the neritic zone. The majority 

of diet studies of North Atlantic loggerheads have involved gut content analyses of stranded 

juveniles. However, Youngkin (2001) reported ontogenetic shifts in diet among loggerheads 

stranded in Georgia -- larger (presumably older) individuals consumed proportionally more 

mollusks than smaller, younger turtles. Proportionally more discarded shrimp trawl fishery 

bycatch was consumed by smaller turtles than by larger, older turtles. Limited studies of adult 

loggerheads indicate that mollusks and benthic crabs make up their primary diet, similar to the 

more thoroughly studied neritic juvenile stage (Youngkin 2001). 

Relationship of Neritic Adult Populations to Rookery Sources 

The genetic population structure of adult loggerheads at their foraging areas is generally 

unknown. The vast majority of in-water studies target juvenile stage loggerheads. 

Reproductively mature female loggerheads tagged in Florida Bay are part of the Peninsular 

Florida Recovery Unit based on satellite telemetry results and tag returns (Schroeder, 

unpublished data). 
I-30

Growth Rates 

Growth data collected during mark-recapture studies of adult loggerheads indicate that growth 

rates (measured as curved carapace length) slow considerably as animals mature and reach their 

maximum size. Mean growth rates of adult female loggerheads nesting along the southeast U.S. 

coast was 0.57 cm/year (SCL) (Bjorndal et al. 1983). The growth rate (CCL) of adult male 

loggerheads (maturity assumed at >40 cm tail length, measured from plastron to tail tip) 

inhabiting inshore foraging areas in Florida Bay was essentially zero (Schroeder, unpublished 

data). 

Duration of the Neritic Adult Stage 

The duration of the adult stage in the neritic environment can be reasonably estimated for 

females from tag return data at nesting beaches. For the Northwest Atlantic nesting population, 

data from Little Cumberland Island, Georgia, show reproductive longevity, and hence duration 

of neritic adult female stage, as long as 25 years (Dahlen et al. 2000). This is likely an 

underestimate of the average reproductive life span given tag loss and incomplete surveys of 

nesting beaches at night. Comparable data for adult males do not exist. 

Survival Probabilities 

Adult females exhibit a strong degree of nest site fidelity, allowing for the possibility of 

“recapturing” the same turtle when she returns to nest. Therefore, most estimates of sea turtle 

survival rates are for adult females. An assumption of survival rates estimated from nesting females 

is that females that nest at the monitored beach will return to that beach to nest. It is known that nest 

site fidelity in sea turtles is not perfect (Miller 1997) and that females may try out one or more 

beaches before selecting a nesting beach to which she remains faithful. In most cases, survival rates 

estimated from nesting data likely underestimate actual survival rates. Recent analysis of adult 

females from the NRU show an annual survival rate (0.85) slightly higher than used in the earlier 

loggerhead models (0.805) (Heppell et al. 2003b). 

F.6. OCEANIC ZONE: ADULT STAGE

Based on stable isotope analyses and satellite telemetry, Hatase et al. (2002) demonstrated that 

some adult female loggerheads nesting in Japan inhabit oceanic habitats rather than neritic 

habitats. Satellite tagged adult loggerheads in western Africa have also been demonstrated to use 

oceanic foraging areas (Hawkes et al. 2006). Preliminary results from stable isotope analyses 

suggest that some loggerheads nesting in Florida may also inhabit oceanic habitats (Reich et al. 

2007). In both Japan and Florida, the females inhabiting oceanic habitats were significantly 

smaller than those in neritic habitats. The extent to which adult loggerheads occupy oceanic 

habitats needs to be evaluated, and effects on survival probabilities and reproductive output 

should be assessed. If a substantial number of adult loggerheads are in oceanic habitats, the 

management and conservation implications are significant because of additional exposure to 

threats in these regions. 
I-31

G. BIOLOGICAL CONSTRAINTS AND NEEDS

Loggerheads are long-lived, slow-growing animals that use multiple habitats across entire ocean 

basins throughout their life history. Maximum intrinsic growth rates of sea turtles are limited by 

the extremely long duration of the juvenile stage and fecundity. Loggerheads require high 

survival rates in the juvenile and adult stages, common constraints critical to maintaining longlived, slow-growing species, to achieve positive or stable long-term population growth (Congdon 

et al. 1993; Heppell 1998; Crouse 1999; Heppell et al. 1999, 2003a; Musick 1999). 

H. THREATS

This section provides descriptive information on each of the identified threats to the loggerhead. 

A comprehensive assessment of recovery plans indicated that the analysis of threats has received 

insufficient attention (Clark et al. 2002) and that this lack of knowledge regarding the nature of 

threats facing a species is likely to contribute to the failure of recovery plans (Lawler et al. 

2002). In response to these assessments, the Loggerhead Recovery Team conducted a detailed 

analysis of threats to assist in prioritizing recovery actions. Appendix 1 describes the process the 

Recovery Team used to identify, categorize, quantify, and prioritize the threats to the Northwest 

Atlantic loggerhead population. The results of this threats analysis are presented in Appendix 2. 

Please refer to the threats tables in Appendix 2 to gain an understanding of the relative 

significance of each threat described below. Conservation efforts to address threats are primarily 

described in Section I; however, some references to conservation efforts are also included in this 

Section. 

H.1. TERRESTRIAL ZONE (NESTING BEACH) 

RESOURCE USE (NON-FISHERIES) 

Illegal Harvest 

In the U.S., killing of nesting loggerheads is infrequent. However, on some beaches, human 

poaching of turtle nests and clandestine markets for eggs has been a problem (Ehrhart and 

Witherington 1987; Mark Dodd, GDNR, personal communication, 2000; Jorge Picon, FWS, 

personal communication, 2002). From 1983 to 1989, the Florida Marine Patrol made 29 arrests 

for illegal possession of turtle eggs (figure not apportioned by species). In Palm Beach, Martin, 

and St. Lucie counties only (Florida coastal areas with what may be the highest prevalence of 

egg poaching), there were 33 arrests for possession or sale of sea turtle eggs from 1980 to 2002 

(Captain Jeff Ardelean, FFWCC, personal communication, 2002). 

Illegal harvest, outside the U.S., is summarized in Dow et al. (2007) and Bräutigam and Eckert 

(2006). Bräutigam and Eckert (2006) documented illegal harvest of sea turtles in 26 jurisdictions 

surveyed in the Lesser Antilles, Caribbean, and Central and South America. Illegal harvest 

included the taking of eggs and the killing of nesting females. In some jurisdictions, illegal take 

of sea turtles was recognized as a serious management challenge although the extent to which 

loggerhead turtles were taken was not determined. 
I-32

Beach Cleaning 

Beach cleaning to collect debris and trash may damage nests and hatchlings. Several methods 

are used to clean beaches, including mechanical raking, hand raking, and picking up debris by 

hand. In mechanical raking, heavy machinery can repeatedly traverse nests and potentially 

compact the sand above them. Mann (1977) suggested that mortality within nests might increase 

when externally applied pressure from beach-cleaning machinery is common on soft beaches 

with large-grain sand. Beach cleaning vehicles also may leave ruts along the beach that hinder 

or trap emergent hatchlings (Hosier et al. 1981). Mechanically pulled rakes and hand rakes, 

particularly if the tongs are longer than 10 cm, penetrate the beach surface and may disturb 

incubating nests or uncover pre-emergent hatchlings near the surface of the nest. 

In some areas, collected debris is buried directly on the beach, and this can lead to excavation 

and destruction of incubating egg clutches. Disposal of debris near the dune line or on the high 

beach can cover incubating egg clutches, hinder and entrap emergent hatchlings, and alter natural 

nest temperatures. Beach cleaning activities that occur prior to daily nesting surveys may harm 

turtles still attempting to nest in the early morning hours. Nesting females may be injured by 

direct contact with beach cleaning equipment or may abort nesting attempts as a result of 

disturbance. In addition, beach cleaning activities conducted prior to the completion of daily 

nesting surveys obscure crawls and make it difficult to determine if nests have been laid, which 

may lead to undercounting of nests and the loss of appropriate nest protection efforts (e.g., 

predator screening). In Florida, mechanical beach cleaning is a common activity that occurs on 

various beaches throughout the state, although a Florida Department of Environmental Protection 

(FDEP) permit, which includes conditions to protect sea turtles, is required. Beach cleaning also 

occurs in Horry County in South Carolina. In Alabama, beach cleaning primarily occurs on 

private lands in the cities of Gulf Shores and Orange Beach. 

 

Human Presence 

The greatest threat posed by humans on the beach at night is disturbance of female turtles before 

they have finished nesting. From the time a female exits the surf until she has begun covering 

her nest, she is highly vulnerable to disturbance, especially prior to and during the early stages of 

egg laying. Females that abort a nesting attempt may attempt to nest again at or near the same 

location or select a new site later that night or the following night. However, repeated 

interruption of nesting attempts may cause a turtle to construct her nest in a sub-optimum 

incubation environment, postpone nesting for several days, prompt movement many kilometers 

from the original chosen nesting site, or result in the shedding of eggs at sea (Murphy 1985). 

Direct harassment may also cause adult turtles to reduce the time spent covering the nest 

(Johnson et al. 1996). Visitors using flashlights or lanterns or lighting campfires on the beach at 

night during the nesting season may deter nesting females from coming ashore and may disorient 

hatchlings (Mortimer 1989). In addition, heavy pedestrian traffic may compact sand over 

unmarked nests (Mann 1977), although the effect of this compaction has not been determined 

and may be negligible (Arianoutsou 1988). Depending on the nesting substrate, pedestrian 

traffic over nests near the time of emergence can cause nests to collapse and result in hatchling 

mortality (Mann 1977, Dutton et al. 1994). A study in Japan found loggerhead nests laid in 
I-33

beach areas with pedestrian access had higher rates of dead pipped hatchlings than nests laid in 

restricted beach zones (Kudo et al. 2003). 

Recreational Beach Equipment 

The use and storage of lounge chairs, cabanas, umbrellas, catamarans, and other types of 

recreational equipment on the beach can hamper or deter nesting by adult females and trap or 

impede hatchlings during their nest to sea migration. The documentation of non-nesting 

emergences (also referred to as false crawls) at these obstacles is becoming increasingly common 

as more recreational beach equipment is left on the beach at night. Sobel (2002) describes 

nesting turtles being deterred by wooden lounge chairs that prevented access to the upper beach. 

Additionally, there are documented reports of nesting females being trapped under heavy 

wooden lounge chairs and cabanas, eggs being destroyed by equipment (e.g., beach umbrellas) 

penetrating the egg chamber, and hatchlings being hampered during emergence by equipment 

inadvertently placed on top of the nest (FFWCC, unpublished data). 

Beach Vehicular Driving 

Operating privately owned vehicles on nesting beaches for recreational purposes or beach access 

is allowed on certain beaches in northeast Florida (Nassau, Duval, St. Johns, and Volusia 

counties), northwest Florida (Walton and Gulf counties), Georgia (Cumberland, Little 

Cumberland, and Sapelo Islands), North Carolina (Fort Fisher State Recreation Area, Carolina 

Beach, Freeman Park, Onslow Beach, Emerald Isle, Indian Beach/Salter Path, Pine Knoll Shores, 

Atlantic Beach, Cape Lookout National Seashore, Cape Hatteras National Seashore, Nag’s Head, 

Kill Devil Hills, Town of Duck, and Currituck Banks), Virginia (Chincoteague NWR and 

Wallops Island), and Texas (the majority of beaches except for a highly developed section of 

South Padre Island and Padre Island National Seashore, San Jose Island, Matagorda Island, and 

Matagorda Peninsula where driving is not allowed or is limited to agency personnel, land 

owners, and/or researchers). Operating vehicles to conduct scientific research and management 

is generally allowed throughout the loggerhead’s nesting range. 

The presence of vehicles on the beach has the potential to negatively impact sea turtles by 

running over nesting females, hatchlings, stranded turtles that have washed ashore, and nests. In 

addition, the ruts left by vehicles in the sand may prevent or impede hatchlings from reaching the 

ocean following emergence from the nest (Mann 1977, Hosier et al. 1981, Cox et al. 1994, 

Hughes and Caine 1994). Hatchlings impeded by vehicle ruts are at greater risk of death from 

predation, fatigue, desiccation, and being crushed by additional vehicle traffic. 

Vehicle lights and vehicle movement on the beach after dark can deter females from nesting and 

disorient hatchlings. Sand compaction due to vehicles on the beach may hinder nest construction 

and hatchling emergence from nests. Driving directly above incubating egg clutches can cause 

sand compaction, which may decrease hatching success and directly kill pre-emergent hatchlings 

(Mann 1977). Additionally, vehicle traffic on nesting beaches may contribute to erosion, 

especially during high tides or on narrow beaches where driving is concentrated on the high 

beach and foredune. 
I-34

Research and Conservation Management Activities

Research and conservation management activities (e.g., nesting surveys, tagging of nesting 

females, nest manipulation) are tools to advance the recovery of the loggerhead; however, they 

have the potential to adversely affect nesting females, hatchlings, and developing embryos if not 

properly conducted. Research and conservation management activities should be carefully 

evaluated to determine their potential risks and conservation benefits. The States, in cooperation 

with FWS, have established permitting programs to ensure that proposed research and 

conservation activities are necessary for recovery, carried out by appropriately trained persons, 

non-duplicative, the least manipulative possible, and carried out in such a way to minimize 

chances of mortality. A low level of lethal take is authorized annually for research and 

conservation purposes. Under conditions where the conservation benefits (e.g., embryo 

survivorship, hatchling survivorship, conservation knowledge gained) are forecast to 

substantially outweigh the potential conservation risks, these activities can be beneficial to 

loggerhead recovery. 

Most research and conservation management activities are likely to have minimal effects on 

nesting turtles, hatchlings, and developing embryos when conducted in accordance with 

established protocols designed to minimize disturbance and risk. On many beaches, surveyors 

use small 4-wheeled all-terrain vehicles with low-pressure (<5 psi) tires that minimally impact 

nesting habitat. In addition, almost all surveys to count nests are conducted after sunrise when 

encounters with nesting turtles and emergent hatchlings are unlikely. Research activities, such as 

flipper and PIT tagging, blood sampling, skin sampling, satellite and radio transmitter 

attachment, and hatchling orientation surveys, have a minimal affect on individual turtles when 

conducted according to established guidelines (e.g., FFWCC Marine Turtle Conservation 

Guidelines [http://myfwc.com/seaturtle/Guidelines/MarineTurtleGuidelines.htm]). Potential 

benefits from this research include important insight into population structure, species health, 

habitat use, and other important aspects of loggerhead biology and ecology. 

Nest relocation is a management technique for protecting nests that are predicted to be destroyed 

by environmental factors, such as erosion or repeated tidal inundation, or permitted human 

activities, such as beach nourishment during the nesting season. However, the unnecessary 

relocation of nests may result in negative impacts to eggs and hatchlings. Historically, the 

relocation of sea turtle nests to higher beach elevations or into hatcheries was a regularly 

recommended conservation management activity throughout the southeast U.S. However, 

advances in our knowledge of the incubation environment have provided important information 

to guide nest management practices. 

Nests located where there are threats from beachfront lighting, foot traffic, and mammalian 

predators can be effectively managed by addressing the threat directly or by protecting the nest 

in situ rather than by moving the nest. In situ protection, which addresses the root causes of egg 

and hatchling mortality, is in keeping with Frazer’s (1992) call to move away from “halfway 

technology.” Increased understanding of the potential adverse effects associated with nest 

relocation, restraint of hatchlings, and concentrated hatchling releases has resulted in less 

manipulative management strategies to protect nests and hatchlings. In Florida, the FFWCC’s 

sea turtle conservation guidelines consider nest relocation to be a management technique of last 
I-35

resort [http://myfwc.com/seaturtle/Guidelines/MarineTurtleGuidelines.htm]. At training 

workshops, nest monitors are advised to relocate nests only if they are certain that the nest will 

otherwise be lost, and if this certainty is based on extensive experience at the specific beach. 

Recovery action 6111 describes development of protocols by which managers could identify 

threatened nests with greater precision, thereby minimizing the number of nests that are 

relocated. 

Military Activities

Military training activities that occur on coastal bases in the southeast U.S. (i.e., Camp Lejeune 

Marine Corps Base in North Carolina, and Eglin and Tyndall Air Force Bases in Florida) have 

the potential to increase non-nesting emergences of nesting females, run over nesting females 

and emerging hatchlings, and destroy nests. Periodic training exercises include such activities as 

beach landings of air cushioned landing craft, amphibious assault vehicles, and other craft; aerial 

bombing simulations over the beach; excavation of bunkers on the beach; testing missile defense 

systems; troops movements on the beach; and mission-related beach driving needs. 

CONSTRUCTION AND DEVELOPMENT

Beach Sand Placement 

Beach sand placement refers to beach restoration, beach nourishment, and inlet maintenance 

projects carried out to provide a temporary remedy for beach erosion. Beach restoration is the 

placement of sand along the shoreline to rebuild a beach that has been totally lost to erosion. 

Beach nourishment is the periodic replenishment of a restored beach to maintain a desired beach 

width for protection of coastal structures. Beach nourishment often involves excavating large 

quantities of sand from one site and placing it on an existing, but eroding, section of coastline. 

Sand is most typically dredged from inlets or offshore, although inland sand sources may also be 

used. Inlet maintenance involves removing sand from an inlet for navigational purposes and 

often involves dredging and disposal of the material onto a nearby beach. Inlet sand bypass 

systems are engineered to allow sand that has been restricted from its normal movement pattern 

by a man-made structure (jetty or artificially deepened channel) to be placed on the downdrift 

beach. These systems usually consist of a large depression constructed near the end of a jetty or 

groin on the updrift side of an inlet. As sand migrates past the structure, it collects in the sink. 

When the sink is full, sand is pumped to the downdrift beach with a hydraulic dredge. 

Beach sand placement is generally viewed as less harmful to sea turtles than armoring, but it too 

can affect sea turtle reproductive success in a variety of ways. Although placing sand on beaches 

may provide a greater quantity of nesting habitat, the quality of that habitat may be less suitable 

than pre-existing natural beaches. Sub-optimal nesting habitat may cause decreased nesting 

success, place an increased energy burden on nesting females, result in abnormal nest 

construction, and reduce the survivorship of eggs and hatchlings. Crain et al. (1995) provides a 

review of the potential effects of beach nourishment on sea turtles. 

During the nesting and hatching season, construction impacts of sand placement projects can 

occur. Pipelines and heavy equipment can create barriers to nesting females, causing a higher 
I-36

incidence of non-nesting emergences. Increased human activity on the project beach at night 

may cause further disturbance to nesting females. Unmarked nests may be crushed by 

construction equipment or buried during sand placement. Nests relocated to a beach site outside 

the project area may experience reduced reproductive success (Limpus et al. 1979, Moody 

1998). Project lighting along the beach and in the nearshore area of a borrow site may deter 

nesting females and misorient emergent hatchlings from adjacent non-project beaches. 

Constructed beaches tend to differ from natural beaches in several important ways. They are 

typically wider, flatter, more compact, and the sediments are more moist than those on natural 

beaches (Nelson et al. 1987, Ackerman et al. 1991, Ernest and Martin 1999). On severely 

eroded sections of beach, where little or no suitable nesting habitat previously existed, sand 

placement can result in increased nesting (Ernest and Martin 1999). However, on most beaches, 

nesting success typically declines for the first year or two following construction, even though 

more nesting habitat is available for turtles (Trindell et al. 1998, Ernest and Martin 1999, Herren 

1999). Reduced nesting success on constructed beaches has been attributed to increased sand 

compaction, escarpment formation, and changes in beach profile (Nelson et al. 1987, Crain et al. 

1995, Lutcavage et al. 1997, Steinitz et al. 1998, Ernest and Martin 1999, Rumbold et al. 2001). 

Compaction can inhibit nest construction or increase the amount of time it takes for turtles to 

construct nests, while escarpments often cause female turtles to return to the ocean without 

nesting or to deposit their nests seaward of the escarpment where they are more susceptible to 

frequent and prolonged tidal inundation. 

Beach sand placement can affect the incubation environment of nests by altering the moisture 

content, gas exchange, and temperature of sediments (Ackerman et al. 1991, Ackerman 1997, 

Parkinson et al. 1999). The extent to which the incubation environment is altered is largely 

dependent on the similarity of the placed sands and the natural sediments they replace. 

Consequently, the results of studies assessing the effects of sand placement on reproductive 

success have varied among study sites. 

Even though constructed beaches are wider, nests deposited there may experience higher rates of 

wash out than those on relatively narrow, steeply sloped beaches (Ernest and Martin 1999). This 

occurs because nests on constructed beaches are more broadly distributed than those on natural 

beaches, where they tend to be clustered near the base of the dune. Nests laid closest to the 

waterline on constructed beaches may be lost during the first year or two following construction 

as the beach undergoes an equilibration process during which seaward portions of the beach are 

lost to erosion. 

Placing sand on highly eroded beaches, especially those with a complete absence of dry beach, 

can benefit nesting turtles if conducted properly. Sea turtle concerns must be considered in 

project planning to ensure the sand source is compatible with naturally occurring beach 

sediments in the area (in terms of grain size, shape, color, etc.) and that remediation measures are 

incorporated into the project to allow for successful nesting, nest incubation, and hatchling 

emergence. Beach and dune profiles that mimic the beaches nesting loggerheads prefer (narrow 

and steeply sloped with a prominent vegetated dune (Provancha and Ehrhart 1987)) are seldom 

the choice for sand placement projects. Rather, constructed beaches are commonly engineered to 
I-37

be wide and flat, traits that achieve the principal goals of upland property protection and 

increased area for human use. 

Although inlet maintenance and sand bypassing efforts have the potential to reduce downdrift 

erosion effects, there may be effects on sea turtle reproduction that are similar to those from 

beach nourishment. For example, several researchers have evaluated the effects of an inlet 

maintenance program on sea turtle reproductive success at Sebastian Inlet on Florida’s Atlantic 

coast. The first of those studies detected no significant differences in hatchling emerging success 

between the beach receiving bypassed sand and a control beach farther downdrift (Ryder 1993). 

However, in a study of a subsequent sand bypass effort, Herren (1999) found a significant 

reduction in hatchling emerging success on the nourished beaches compared to a control. 

Differences in results between studies probably relate to variability in the characteristics of 

sediments placed on the beach. In addition to reduced reproductive success, Herren (1999) also 

noted a decline in nesting success downdrift of the inlet during the first year or two following a 

sand bypass project, likely caused by the presence of escarpments that formed on the beach postconstruction. Witherington et al. (2005) measured loggerhead nesting density over a 12-year 

period (1989 to 2000) within 6 km of Sebastian Inlet and found nesting decreased significantly 

with proximity to the inlet in both updrift and downdrift directions. 

Beach Armoring 

Armoring is any rigid structure placed parallel to the shoreline on the upper beach to prevent 

both landward retreat of the shoreline and inundation or loss of upland property by flooding and 

wave action (Kraus and McDougal 1996). Armoring includes bulkheads, seawalls, soil retaining 

walls, rock revetments, sandbags, and geotextile tubes. Schroeder and Mosier (2000) provide 

descriptions of these different structures. Although armoring structures may provide short-term 

protection to beachfront property, they do little to promote or maintain sandy beaches. These 

structures influence natural shoreline processes and the physical beach environment, but the 

effects are not well understood. It is clear that armoring structures prevent long-term recovery of 

the beach/dune system (i.e., building of the back beach) by physically prohibiting dune formation 

from wave uprush and wind-blown sand. Reported topographic effects seaward and adjacent to 

these structures vary between project sites (Kaufman and Pilkey 1979, Pilkey et al. 1984, Kraus 

1988, Kraus and McDougal 1996). 

Erosion of adjacent downdrift beaches can occur if an updrift armoring structure acts as a jetty 

and impounds sand (Kraus 1988, Tait and Griggs 1990). Additionally, these structures can cause 

wave reflection and scour, processes that accelerate erosion seaward of the structure and that 

steepen the offshore profile (Pilkey et al. 1984). Sand can move along shore past an armoring 

structure, but it is not clear whether the longshore sediment transport rate changes (Kraus and 

McDougal 1996). Pilkey et al. (1984) contend that the intensity of longshore currents increases 

in front of armoring structures and this hastens removal of beach sand. Most likely, the extent to 

which any of these potentially harmful effects may be realized is largely dependent upon a 

structure’s physical position on the beach relative to the surf zone (Kraus 1988, Tait and Griggs 

1990). The closer an armoring structure is to the surf zone, the greater its potential for altering 

shoreline processes. 
I-38

Considerable anecdotal information suggests that permanent armoring structures can diminish 

the quality of sea turtle nesting habitat. However, there have been few experimental studies 

designed specifically to assess the impacts of these structures on sea turtle nesting. Mosier 

(1998) and Mosier and Witherington (2002) recorded the behavior of nesting turtles in front of 

seawalls and adjacent unarmored sections of beach. Mosier (1998) reported that fewer 

loggerheads made nesting attempts on beaches fronted by seawalls than on adjacent beaches 

where armoring structures were absent. Both studies found that when turtles did emerge in the 

presence of armoring structures, more returned to the water without nesting than those on nonarmored beaches. Additionally, Mosier (1998) found that turtles on armored sections of beach 

tended to wander greater distances than those that emerged on adjacent natural beaches. It is 

unknown if this additional energy expenditure reduces reproductive output. Armoring structures 

can effectively eliminate a turtle’s access to upper regions of the beach/dune system. 

Consequently, nests on armored beaches were generally found at lower elevations than those on 

non-walled beaches. Lower elevations subject nests to a greater risk of repeated tidal inundation 

and erosion and can potentially alter thermal regimes, an important factor in determining the sex 

ratio of hatchlings (Mrosovsky and Provancha 1989, Mrosovsky 1994, Ackerman 1997, Delpech 

and Foote 1998). The negative effects of armoring become more pronounced the closer the 

structures are to the surf zone. Thus, the quality of beach habitat seaward of armoring structures 

on eroding sections of coastline can be expected to diminish as the shoreline recedes. 

Impacts also can occur if the installation of structures takes place during the nesting season. 

Unmarked nests can be crushed or uncovered by heavy equipment. Vibrations and water runoff 

from jetting operations during installation of structures can damage nests as well. There have 

also been reported incidents of nesting turtles and hatchlings getting caught in construction 

debris or trapped in excavations at construction sites (FFWCC, unpublished data). In addition, 

hatchlings have been trapped in holes or crevices of exposed riprap and geotextile tubes. Both 

nesting turtles and hatchlings have been entangled or entrapped in the debris of failed structures. 

There have also been reports of injuries and deaths of nesting turtles that have fallen from 

seawalls after crawling onto them from adjacent properties (FFWCC, unpublished data). 

As the extent of armoring on beaches increases, the probability of a nesting turtle encountering a 

seawall or depositing a nest in sub-optimal habitat increases. Nests deposited in sub-optimal 

habitat are likely to suffer increased mortality. The proportion of coastline that is armored is 

approximately 18% (239 km) in Florida (Clark 1992, Schroeder and Mosier 2000, Witherington 

et al. 2006), 9% (14 km) in Georgia (Mark Dodd, GDNR, personal communication, 2000), 12% 

(29 km) in South Carolina (Sally Murphy, SCDNR, personal communication, 2000), and 2% (9 

km) in North Carolina (Sean McGuire, North Carolina Division of Coastal Management, 

personal communication, 2002). These assessments of armoring extent do not include structures 

that are a barrier to sea turtle nesting but that do not fit the definition of armoring, such as dune 

crossovers, cabanas, sand fences, and recreational equipment. 
I-39

Other Shoreline Stabilizations 

a. Groins and Jetties 

Groins and jetties are shore-perpendicular structures that are designed to trap sand that would 

otherwise be transported by longshore currents. Jetties are defined as structures placed to keep 

sand from flowing into channels (Kaufman and Pilkey 1979, Komar 1983). In preventing 

normal sand transport, these structures accrete updrift beaches while causing accelerated beach 

erosion downdrift of the structures (Komar 1983, Pilkey et al. 1984, National Research Council 

1987), a process that results in degradation of sea turtle nesting habitat. As sand fills the area 

updrift from the groin or jetty, some littoral drift and sand deposition on adjacent downdrift 

beaches may occur due to spillover. However, these structures often force the stream of sand 

into deeper offshore water where it is lost from the system (Kaufman and Pilkey 1979). The 

greatest changes in beach profile near groins and jetties are observed close to the structures, but 

effects eventually may extend many kilometers along the coast (Komar 1983). 

Jetties are placed at ocean inlets to keep transported sand from closing the inlet channel. 

Together, jetties and inlets are known to have profound effects on adjacent beaches (Kaufman 

and Pilkey 1979). Witherington et al. (2005) found a significant negative relationship between 

loggerhead nesting density and distance from the nearest of 17 ocean inlets on the Atlantic coast 

of Florida. The effect of inlets in lowering nesting density was observed both updrift and 

downdrift of the inlets, leading researchers to propose that beach instability from both erosion 

and accretion may discourage loggerhead nesting. 

Construction of groins and jetties during the nesting season may result in the destruction of nests, 

disturbance of females attempting to nest, and disorientation of emerging hatchlings from project 

lighting. Following construction, the presence of groins and jetties may interfere with nesting 

turtle access to the beach, result in a change in beach profile and width (downdrift erosion, loss 

of sandy berms, and escarpment formation), trap hatchlings, and concentrate predatory fishes, 

resulting in higher probabilities of hatchling predation. Experimental mesh groins have been 

tested as a potential beach restoration system. The mesh groin system is a temporary set of 

groins composed of net “fences” set in the intertidal and subtidal zone that have the potential to 

entrap turtles and other marine life within the openings of the net or other parts of the structure. 

Escarpments may develop on beaches between groins as the beaches equilibrate to their final 

profiles. These escarpments are known to prevent females from nesting on the upper beach and 

can cause them to choose unsuitable nesting areas, such as seaward of an escarpment. These nest 

sites commonly receive prolonged tidal inundation and erosion, which results in nest failure 

(Nelson and Blihovde 1998). 

As groin structures fail and break apart, they spread debris on the beach, which may further 

impede nesting females from accessing suitable nesting sites and trap both hatchlings and nesting 

turtles. Geotextile tubes begin to disintegrate when exposed to ultraviolet light (life expectancy 

is approximately 5 to 10 years). This may result in pieces of geotextile material, a woven 

plastic-like substance, floating off or being washed up on the beach. Although painting the 

exposed portions of the geotextile tube to protect them from ultraviolet light will slow down the 
I-40

rate of disintegration, it will still occur. The material may be ingested by sea turtles or entangle 

them, either of which could result in death. 

b. Offshore Breakwaters 

Breakwaters are typically constructed from rock or concrete and are placed in nearshore waters 

to reduce wave energy (National Research Council 1990b). This reduction in wave energy 

modifies the longshore transport of sand and may result in an accumulation of sand and a 

reduction in erosion along the shoreline adjacent to the breakwater. However, the placement of 

breakwaters may result in the formation of a sand bar that connects the beach to the breakwater 

as sand accumulates. This creates a situation where the breakwater acts as a headland rather than 

an offshore feature. The breakwater then functions as a barrier to the longshore transport of 

material in a manner similar to a groin, resulting in downdrift erosion (National Research 

Council 1995) and degradation of downdrift sea turtle nesting habitat. 

Breakwaters may be built with different top elevations. They may be built to project above the 

water’s surface or they may be built as submerged structures that are designed to reduce the 

height of waves but not to absorb or reflect all wave energy (National Research Council 1989). 

Emergent breakwaters that are oriented parallel to the shoreline have the potential to interfere 

with the movement of adult females to and from the nesting beach; function as barriers to 

hatchlings during offshore migration; entrap hatchlings in the crevices of the structures or within 

eddies or other currents associated with the structures; and increase hatchling and adult female 

energy expenditure in their attempts to bypass the structures. 

Sand Fences 

Sand fences, also known as snow fences and drift fences, are erected to build and stabilize dunes 

by trapping sand moving along the beach and by preventing excessive sand loss. Additionally, 

these fences can protect dune systems by deterring foot traffic. Sand fences are constructed of 

narrowly spaced wooden or plastic slats or plastic fabric. If improperly placed, sand fencing 

may act as a barrier to nesting females or trap hatchlings (National Research Council 1990a). 

The placement of sand fencing during the nesting season may result in destruction of unmarked 

nests. 

Stormwater Outfalls 

Rainfall on dunes and beaches percolates rapidly into the permeable sands and produces little, if 

any, runoff. However, runoff from beachfront parking lots, building rooftops, roads, decks, and 

draining swimming pools adjacent to the beach is frequently discharged directly to the beach and 

dune either by sheet flow, through stormwater collection system outfalls, or through small 

diameter pipes. These outfalls are known to create localized erosion channels, prevent natural 

dune establishment, and wash out sea turtle nests (FFWCC, unpublished data). Stormwater 

runoff can result in beach erosion and prevent natural dune building in localized areas. 

Contaminants contained in stormwater, such as oils, grease, antifreeze, gasoline, metals, 

pesticides, chlorine, and nutrients, may affect sea turtle nests and other beach fauna when large 

amounts of stormwater are discharged onto the beach. 
I-41

Coastal Construction 

In addition to shoreline protection activities, there are a variety of other coastal construction 

activities that may affect sea turtles. These include construction, repair, and maintenance of 

upland structures and dune crossovers; installation of utility cables; installation and repair of 

public infrastructure (such as coastal highways and emergency evacuation routes); and 

construction equipment and lighting associated with any of these activities. Many of these 

activities may alter nesting habitat and harm nests, adults, and hatchlings as described previously 

for coastal armoring. Most direct construction-related impacts can be avoided by requiring that 

non-emergency activities be performed outside of the nesting and hatching season. However, 

indirect effects can also result from the post-construction presence of structures on the beach. 

The presence of these structures may cause nesting turtles to return to the ocean without nesting, 

deposit their nests lower on the beach where they are more susceptible to frequent and prolonged 

tidal inundation, or select less suitable nesting sites where shading from the structures can 

influence incubation temperatures and potentially result in changes in hatchling sex ratios 

(Mrosovsky et al. 1995). 

ECOSYSTEM ALTERATIONS

Beach Erosion and Accretion 

Natural beach erosion events may influence the quality of nesting habitat. Nesting females may 

deposit eggs at the base of an escarpment formed during an erosion event where they are more 

susceptible to repeated tidal inundation. Erosion, frequent or prolonged tidal inundation, and 

accretion can negatively affect incubating egg clutches. Short-term erosion events (e.g., 

atmospheric fronts, northeasters, tropical storms, and hurricanes) are common phenomena 

throughout the loggerhead nesting range and may vary considerably from year to year. Sea 

turtles have evolved a strategy to offset these natural events by laying large numbers of eggs and 

by distributing their nests both spatially and temporally. Thus, the total annual hatchling 

production is never fully affected by storm-generated beach erosion and inundation, although 

local effects may be high. For example, storm-induced mortality in the DTRU has been high 

during years of high tropical storm activity and may limit recovery (Van Houtan and Bass 2007). 

However, human activities along coastlines can accelerate erosion rates, interrupt natural 

shoreline migration, and reduce both the quantity and quality of available nesting habitat. 

During erosion events, some nests may be uncovered or completely washed away. Nests that are 

not washed away may suffer reduced reproductive success as the result of frequent or prolonged 

tidal inundation. Eggs saturated with seawater are susceptible to embryonic mortality (Bustard 

and Greenham 1968, Milton et al. 1994, Martin 1996). However, in spite of the potential for 

reduced hatching success, loggerhead eggs can successfully survive periodic tidal inundation 

(Foley 1998, Foley et al. 2006). Similarly, Ernest and Martin (1993) found that although 

frequent or prolonged tidal inundation resulted in fewer emergent hatchlings, occasional 

overwash of nests appeared to have minimal effect on reproductive success. Accretion of sand 

above incubating nests may also result in egg and hatchling mortality (Ehrhart and Witherington 

1987). 
I-42

POLLUTION

Oil Pollution 

Oil spills in the vicinity of nesting beaches just prior to or during the nesting season could place 

nesting females, incubating egg clutches, and hatchlings at significant risk (Fritts and McGehee 

1982, Lutcavage et al. 1997, Witherington 1999). Fritts and McGehee (1982) conducted both 

field and laboratory studies to determine the effects of petroleum on the development and 

survival of sea turtle embryos. Their results suggest that an oil spill resulting in contamination of 

nesting beaches before the nesting season may affect nesting success for only a short period, if at 

all, but a spill resulting in the deposition of oil on eggs or on top of an incubating nest is likely to 

increase mortality and result in abnormal development of hatchlings. They concluded that the 

overall effect of oil spills on turtles was likely dependent on the timing of the spill and the age of 

the oil. 

Two oil spills that occurred near loggerhead nesting beaches in Florida were observed to affect 

eggs, hatchlings, and nesting females. Approximately 350,000 gallons of fuel oil spilled in 

Tampa Bay in August 1993 and was carried onto nesting beaches in Pinellas County. Observed 

mortalities included 31 hatchlings and 176 oil covered nests; an additional 2,177 eggs and 

hatchlings were either exposed to oil or disturbed by response activities (FDEP et al. 1997). 

Another spill near the beaches of Broward County in August 2000 involved approximately 

15,000 gallons of oil and tar (NOAA and FDEP 2002). Models estimated that approximately 

1,500 to 2,000 hatchlings and 0 to 1 adults were injured or killed. 

Oil cleanup activities can also be harmful. Earth-moving equipment can dissuade females from 

nesting and destroy nests, containment booms can entrap hatchlings, and lighting from nighttime 

activities can misdirect turtles (Witherington 1999). 

Lighting Pollution 

Both nesting and hatchling sea turtles are adversely affected by the presence of artificial lighting 

on or near the beach (Witherington and Martin 1996). Experimental studies have shown that 

artificial lighting deters adult female turtles from emerging from the ocean to nest (Witherington 

1992). Witherington (1986) noted that loggerheads aborted nesting attempts at a greater 

frequency in lighted areas. Because adult females rely on visual brightness cues to find their 

way back to the ocean after nesting, those turtles that nest on lighted beaches may become 

disoriented (unable to maintain constant directional movement) or misoriented (able to maintain 

constant directional movement but in the wrong direction) by artificial lighting and have 

difficulty finding their way back to the ocean. In some cases, misdirected nesting females have 

crawled onto coastal highways and have been struck and killed by vehicles (FFWCC, 

unpublished data). 

Hatchlings exhibit a robust sea-finding behavior guided by visual cues (Witherington and 

Bjorndal 1991, Salmon et al. 1992, Lohmann et al. 1997, Witherington and Martin 1996, 

Lohmann and Lohmann 2003), and direct and timely migration from the nest to sea is critical to 
I-43

their survivorship. Although the mechanism involved in sea-finding is complex, involving cues 

from both brightness and shape, it is clear that strong brightness stimuli can override other 

competing cues (Witherington and Martin 1996). 

Hatchlings have a tendency to orient toward the brightest direction as integrated over a broad 

horizontal area. On natural undeveloped beaches, the brightest direction is commonly away 

from elevated shapes (e.g., dune, vegetation, etc.) and their silhouettes and toward the broad 

open horizon of the sea. On developed beaches, the brightest direction is often away from the 

ocean and toward lighted structures. Hatchlings unable to find the ocean, or delayed in reaching 

it, are likely to incur high mortality from dehydration, exhaustion, or predation (Carr and Ogren 

1960, Ehrhart and Witherington 1987, Witherington and Martin 1996). Hatchlings lured into 

lighted parking lots or toward streetlights are often crushed by passing vehicles (McFarlane 

1963, Philibosian 1976, Peters and Verhoeven 1994, Witherington and Martin 1996). 

Uncommonly intense artificial lighting can draw hatchlings back out of the surf (Daniel and 

Smith 1947, Carr and Ogren 1960, Ehrhart and Witherington 1987). 

Although the attributes that can make a light source harmful to sea turtles are complex, a simple 

rule has proven useful in identifying lights that pose potential problems for sea turtles. 

Witherington and Martin (1996) propose that artificial light sources are “likely to cause problems 

for sea turtles if light from the source can be seen by an observer standing anywhere on the 

beach.” This visible light can come directly from any glowing portion of a luminaire, including 

the lamp, globe, or reflector, or indirectly by reflection from buildings or trees that are visible 

from the beach. Bright or numerous light sources, especially those directed upward, will 

illuminate sea mist and low clouds, creating a distinct sky glow visible from the beach. Field 

research suggests hatchling orientation can be disrupted by the sky glow from heavily lighted 

coastal areas even when no direct lighting is visible (Witherington et al. 1994). 

The ephemeral nature of evidence from hatchling disorientation and mortality makes it difficult 

to accurately assess how many hatchlings are misdirected and killed by artificial lighting. 

Reports of hatchling disorientation events in Florida describe several hundred nests each year 

and are likely to involve tens of thousands of hatchlings (Nelson et al. 2002). However, this 

number calculated from disorientation reports is likely a vast underestimate. Independent of 

these reports, Witherington et al. (1996) surveyed hatchling orientation at nests located at 23 

representative beaches in six counties around Florida in 1993 and 1994 and found that, by 

county, approximately 10 to 30% of nests showed evidence of hatchlings disoriented by lighting. 

From this survey and from measures of hatchling production (FFWCC, unpublished data), the 

number of hatchlings disoriented by lighting in Florida is calculated in the range of hundreds of 

thousands per year. 

Beach Debris 

Hatchlings often must navigate through a variety of obstacles before reaching the ocean. These 

include natural and human-made debris. Debris on the beach may interfere with a hatchling’s 

progress toward the ocean. Research has shown that travel times of hatchlings from the nest to 

the water may be extended when traversing areas of heavy foot traffic or vehicular ruts (Hosier 

et al. 1981); the same is true of debris on the beach. Hatchlings may be upended and spend both 
I-44

time and energy in righting themselves. Some beach debris may have the potential to trap 

hatchlings and prevent them from successfully reaching the ocean. In addition, debris over the 

tops of nests may impede or prevent hatchling emergence. 

SPECIES INTERACTIONS

Predation 

Predation of eggs and hatchlings by native and introduced species occurs on almost all nesting 

beaches. The most common predators in the southeast U.S. are ghost crabs (Ocypode quadrata), 

raccoons (Procyon lotor), feral hogs (Sus scrofa), foxes (Urocyon cinereoargenteus and Vulpes 

vulpes), coyotes (Canis latrans), armadillos (Dasypus novemcinctus), and red fire ants 

(Solenopsis invicta) (Dodd 1988, Stancyk 1982). In the absence of nest protection programs in a 

number of locations throughout the southeast U.S., raccoons may depredate up to 96% of all 

nests deposited on a beach (Davis and Whiting 1977, Hopkins and Murphy 1980, Stancyk et al. 

1980, Talbert et al. 1980, Schroeder 1981, Labisky et al. 1986). Prior to hog control efforts, up 

to 45% of all nests deposited at the Cape Canaveral Air Force Station, Florida, were depredated 

by feral hogs (FFWCC, unpublished data). In 1990, an estimated 70% of loggerhead nests were 

destroyed by feral hogs on Ossabaw Island, Georgia (GDNR, unpublished data). In addition to 

the destruction of eggs, predators may take considerable numbers of hatchlings prior to or upon 

emergence from the sand. Florida beaches report hatchlings being preyed upon by coyotes, 

foxes, raccoons, domestic dogs, red fire ants, and ghost crabs during emergence from the nest 

(FFWCC, unpublished data). 

Although not considered a typical form of predation, roots of sea oats (Uniola paniculata), 

railroad vine (Ipomoea pes-caprae), and other dune plants sometimes invade the nest cavity and 

penetrate incubating eggs (Witherington 1986). This occurs primarily in nests laid high on the 

beach at or landward of the toe of the dune. 

Exotic Dune and Beach Vegetation 

Non-native vegetation has invaded many coastal areas and often outcompetes native species such 

as sea oats, railroad vine, sea grape (Coccoloba uvifera), bitter panicgrass (Panicum amarum), 

and seaside pennywort (Hydrocotyle bonariensis). The invasion of less stabilizing vegetation 

can lead to increased erosion and degradation of suitable nesting habitat. Exotic vegetation may 

also form impenetrable root mats that can prevent proper nest cavity excavation, invade and 

desiccate eggs, or trap hatchlings. 

The Australian pine (Casuarina equisetifolia) is particularly harmful to sea turtles. Dense stands 

have taken over many coastal areas throughout central and south Florida. Australian pines cause 

excessive shading of the beach that would not otherwise occur. Studies in Florida suggest that 

nests laid in shaded areas are subjected to lower incubation temperatures, which may alter the 

natural hatchling sex ratio (Marcus and Maley 1987, Schmelz and Mezich 1988, Hanson et al. 

1998). Fallen Australian pines limit access to suitable nest sites and can entrap nesting females 

(Austin 1978, Reardon and Mansfield 1997). The shallow root network of these pines can 

interfere with nest construction (Schmelz and Mezich 1988). Davis and Whiting (1977) reported 
I-45

that nesting activity declined in Everglades National Park where dense stands of Australian pine 

took over native dune vegetation on a remote nesting beach. 

Beach vitex (Vitex rotundifolia) was introduced to the horticulture trade in the mid-1980s and is 

often sold as a “dune stabilizer.” The plant is native to Japan, Korea, and Hawaii. Its presence 

on North Carolina and South Carolina beaches could have a negative effect on sea turtle nesting. 

This exotic plant is crowding out the native species, such as sea oats and bitter panicum, and can 

colonize large areas in just a few years. 

Sisal, or century plant, (Agave americana) is native to arid regions of Mexico. The plant was 

widely grown in sandy soils around Florida in order to provide fiber for cordage. It has escaped 

cultivation in Florida and has been purposely planted on dunes. Although the effects of sisal on 

sea turtle nesting are uncertain, thickets with impenetrable sharp spines are occasionally found 

on developed beaches. 

OTHER FACTORS

Climate Change 

Climate change has the potential to greatly impact loggerhead turtles. Impacts from climate 

change, especially due to global warming, are likely to become more apparent in future years 

(Intergovernmental Panel on Climate Change (IPCC) 2007a). The global mean temperature has 

risen 0.76oC over the last 150 years, and the linear trend over the last 50 years is nearly twice that 

for the last 100 years (IPCC 2007a). 

One of the most certain consequences of climate change is rising sea levels (Titus and Narayanan 

1995), which will result in increased erosion rates along nesting beaches. This could particularly 

impact areas with low-lying beaches where sand depth is a limiting factor, as the sea will 

inundate nesting sites and decrease available nesting habitat (Daniels et al. 1993, Fish et al. 

2005, Baker et al. 2006). The loss of habitat as a result of climate change could be accelerated 

due to a combination of other environmental and oceanographic changes such as an increase in 

the frequency of storms and/or changes in prevailing currents, both of which could lead to 

increased beach loss via erosion (Antonelis et al. 2006, Baker et al. 2006). On some 

undeveloped beaches, shoreline migration will have limited effects on the suitability of nesting 

habitat. Bruun (1962) hypothesized that during a sea level rise a typical beach profile will 

maintain its configuration but will be translated landward and upward. However, along 

developed coastlines, and especially in areas where erosion control structures have been 

constructed to limit shoreline movement, rising sea levels will cause severe effects on nesting 

females and their eggs. Erosion control structures can result in the permanent loss of dry nesting 

beach or deter nesting females from reaching suitable nesting sites (National Research Council 

1990a). Nesting females may deposit eggs seaward of the erosion control structures potentially 

subjecting them to repeated tidal inundation. Climate change may also affect loggerhead sex 

ratios. Loggerhead turtles exhibit temperature-dependent sex determination. Rapidly increasing 

global temperatures may result in warmer incubation temperatures and highly female-biased sex 

ratios (e.g., Glen and Mrosovsky 2004). 
I-46

Natural Catastrophes 

Aperiodic, short-term weather-related erosion events (e.g., atmospheric fronts, northeasters, 

tropical storms, and hurricanes) are common phenomena throughout the loggerhead nesting 

range and may vary considerably from year to year. Milton et al. (1994) reported that 24.5% of 

all loggerhead nests laid on Deerfield Beach, Florida, in 1992 were lost or destroyed by 

Hurricane Andrew as a result of storm surge. Similarly, Martin (1996) reported a 22.7% loss of 

total loggerhead nest production on the southern portion of Hutchinson Island, Florida, during 

the passage of Hurricane Erin in 1995. Ehrhart and Witherington (1987) reported a 19% loss of 

loggerhead nests at Melbourne Beach, Florida, after a 5-day northeaster in 1985. In Georgia, 

16% of loggerhead nests were lost to tropical storm systems in 2001 (Dodd and Mackinnon 

2001); nest loss was particularly high on Sapelo (54%) and Little Cumberland Islands (28%). 

On Fisher Island in Florida, Milton et al. (1994) reported that hatchling emerging success 

decreased significantly following Hurricane Andrew in 1992. They found that hatchlings were 

unable to emerge from nests where sand had accreted in large quantities and that these hatchlings 

probably died from asphyxiation or exhaustion while struggling to emerge from the nests. Sea 

turtles have evolved a strategy to offset these natural events by laying large numbers of eggs and 

by distributing their nests both spatially and temporally. 

H.2. NERITIC ZONE

RESOURCE USE (FISHERIES) 

Trawl Fisheries 

Of all commercial and recreational fisheries in the U.S., shrimp trawling is the most detrimental 

to the recovery of sea turtle populations. In a 1990 study, the National Academy of Sciences 

estimated that between 5,000 and 50,000 loggerheads were killed annually by the offshore 

shrimping fleet in the southeast U.S. Atlantic and Gulf of Mexico (National Research Council 

1990a). Mortality associated with shrimp trawls was estimated to be 10 times greater than that 

of all other human-related factors combined. Most of these turtles were neritic juveniles, the life 

stages most critical to the stability and recovery of sea turtle populations (Crouse et al. 1987, 

Crowder et al. 1994).

In 1978, NMFS initiated the development of a net modification to allow captured turtles to 

escape from shrimp nets. The result of this research was a device known as a turtle excluder 

device (TED). The original TED design was a large cage-like design that was effective in 

excluding turtles, but proved unwieldy and potentially dangerous for fishermen. Commercial 

fishermen, in cooperation with NMFS, developed several new lighter TED designs based on net 

modifications commonly used by shrimpers to reduce unwanted bycatch (e.g., cannonball 

jellyfish). These designs consisted of a metal-grid or webbing ramp (i.e., soft TED) that directed 

turtles to an escape opening cut in the top or bottom of the net. Because of the increasing 

number of new TED designs developed by fishermen, NMFS adopted standardized guidelines 

that required all approved TEDs to be 97% effective in excluding turtles (NMFS 1987, 52 FR 

24244). 
I-47

By 1986, lack of widespread voluntary use of TEDs by shrimpers resulted in Federal regulations 

requiring their implementation. NMFS published final regulations in June 1987; however, 

implementation was delayed as a result of legal and congressional action. This delay prompted 

South Carolina and Florida to require the use of TEDs in waters under their jurisdiction. The use 

of TEDs for all offshore trawlers from North Carolina to Texas was implemented in 1990 for the 

period May through August and was extended to year-round in 1991. By December 1994, 

regulations requiring fishery-wide use of TEDs in shrimp trawls, including all inshore areas, 

were finalized or enacted (NMFS 1992, 57 FR 57348). 

The overall effectiveness of TEDs is difficult to assess. Crowder et al. (1995) found sea turtle 

strandings were reduced by 44% in South Carolina following the implementation of TEDs. 

Royle (2000) found strandings were reduced by 37% in Georgia over the period from 1980 to 

1997. In contrast, Shoop et al. (1999) found no reduction in sea turtle strandings on Cumberland 

Island, Georgia, with increased TED use. In the Gulf of Mexico, Caillouet et al. (1996) found 

that TED regulations did not diminish the statistical correlation between stranding rates and 

commercial fishing intensity. Large-scale stranding events associated with shrimp fishing 

activity have been documented following the mandatory use of TEDs (Lewison et al. 2003; 

Mark Dodd, GDNR, personal communication, 2008). 

Although TEDs were found to reduce trawl related sea turtle mortality, in some cases the use of 

inefficient designs and small opening sizes reduced their potential effectiveness. For example, 

NMFS approved several TED configurations (e.g., Morrison soft TED) that were later 

disallowed when additional testing found they captured and drowned turtles. Epperly and Teas 

(2002) found minimum TED opening sizes were too small to allow large juvenile and adult 

loggerheads to escape from shrimp trawls. They estimated that 33 to 47% of the total loggerhead 

strandings measured on U.S. beaches from 1986 to 1999 were too large to fit through the 

minimum TED opening. In response to this finding, South Carolina enacted regulations 

requiring increased TED escape openings in 2002 (South Carolina Code of Laws 50-5-765). In 

2003, NMFS revised the regionwide comprehensive TED regulations to require larger escape 

openings (NMFS 2003b, 68 FR 8456). 

Several other shrimp-fishery related factors likely contribute to high loggerhead mortality rates. 

These factors include illegally modified TEDs (closed TED openings), high fishing densities 

(multiple capture of individual turtles), high capture rates in sampling nets (trynets), and bycatch 

in skimmer trawls and butterfly nets. Data are not currently available to assess the impacts of 

these factors on sea turtle mortality. 

Other trawl fisheries operating in waters under Federal jurisdiction that are known to capture sea 

turtles include, but are not limited to, summer flounder, calico scallop, Atlantic sea scallop, blue 

crab, whelk, cannonball jellyfish, horseshoe crab, and mid-Atlantic directed finfish trawl 

fisheries and the Sargassum fishery. The summer flounder fishery is the only trawl fishery 

(other than the shrimp fishery) with federally mandated TED use, in certain areas, as a result of 

high mortality rates. In the winter of 1991-1992, Epperly et al. (1995a) estimated a total of 

1,063 sea turtle captures in the flounder fishery, and 89 to 191 of the captures were estimated as 

mortalities. Loggerhead annual bycatch estimates in 2004 and 2005 in mid-Atlantic scallop 

trawl gear ranged from 81 to 191 turtles, depending on the estimation methodology used (Murray 
I-48

2007). Estimated average annual bycatch of loggerheads in other mid-Atlantic federally 

managed bottom otter trawl fisheries during 1996-2004 was 616 turtles (Murray 2006). The 

harvest of Sargassum by trawlers can result in incidental capture of post-hatchlings and habitat 

destruction (Schwartz 1988, Witherington 2002). 

Regulations regarding trawl fisheries under state jurisdiction are highly variable. Some states, 

including New Hampshire, Delaware, Virginia, Maryland, and Florida, maintain offshore areas 

permanently closed to trawling. The State of Georgia requires the use of NMFS-approved TEDs 

in all trawl fisheries operating in state waters. South Carolina uses a water-temperature trigger to 

ensure whelk trawling occurs when sea turtles are less abundant. With the exception of the 

shrimp fishery and part of the summer flounder fishery, TEDs are not required in most trawl 

fisheries operating in state waters. 

Dredge Fisheries 

Dredge fishing gear is the predominant gear used to harvest sea scallops off the mid- and 

northeastern Atlantic coast. Sea scallop dredges are composed of a heavy steel frame and cutting 

bar located on the bottom part of the frame and a bag, made of metal rings and mesh twine, 

attached to the frame. The gear is fished along the bottom and weighs from 500-1,000 pounds 

(National Research Council 2002). Turtles can be struck and injured or killed by the dredge 

frame and/or captured in the bag where they may drown or be further injured or killed when the 

catch and heavy gear are dumped on the vessel deck. Total estimated bycatch of loggerhead 

turtles in the sea scallop dredge fishery operating in the mid-Atlantic region (New York to North 

Carolina) from June through November 2003 was 749 turtles (CV=0.28) (Murray 2004). Total 

estimated loggerhead bycatch in this region for the period June through November 2004 was 180 

turtles (CV=0.37) (Murray 2005) and 0 turtles (CV=0.19) in 2005 (Murray 2007). Takes were 

observed in 2005; however, they occurred “off watch” and were therefore not used in developing 

the 2005 bycatch estimate. This apparent reduction in estimated annual bycatch must be viewed 

with caution as operation of the fishery changed in 2004. Specifically, scallop closures and 

rotations were implemented, and an unquantified number of vessels implemented voluntary use 

of a chain mat that prevents turtles (live and/or killed or injured by the dredge) from entering the 

bag and being observed, which likely affected the total observed bycatch of turtles. NMFS 

(2008a) anticipates that up to 929 loggerheads will be captured biennially in the U.S. Atlantic 

scallop dredge fishery, 595 of these captures are anticipated to be lethal. Scallop chain mats are 

now required in the sea scallop fishery in certain areas and at certain times; however, they are not 

expected to reduce the effects of the dredge on turtles encountered on the bottom. The 

interaction of the sea scallop dredge fishery on loggerheads in the Northwest Atlantic remains a 

serious concern. 

A small dredge fishery for whelks has been pursued in inshore waters of Virginia. Occasional 

loggerhead takes have been reported in this fishery, but total bycatch is unknown (John Musick, 

VIMS, personal communication, 2005). 
I-49

Longline Fisheries 

The principal longline fishery affecting loggerheads in the neritic environment is the commercial 

bottom longline fishery for sharks, which operates in summer off the mid-Atlantic States and all 

year long off the south Atlantic and Gulf states. Estimated bycatch of loggerheads in shark 

bottom longline gear between 2004 and 2006 was 588 loggerheads caught in the Gulf of Mexico 

(176 dead) and 197 loggerheads caught in the southeast U.S. Atlantic (167 dead) (NMFS 2007, 

Richards 2007). The Gulf of Mexico reef fish and south Atlantic snapper-grouper commercial 

fisheries also have bottom longline components that impact loggerheads. These fisheries 

generally have shorter soak times, but sometimes deeper sets than the bottom longline fishery for 

sharks. NMFS estimated 974 hardshelled turtles (433 alive, 325 dead, and 216 unknown 

condition), predominantly loggerheads, were caught in the Gulf of Mexico reef fish fishery from 

July 2006 through December 2007 (NMFS 2008b). 

Other Hook and Line Fisheries

There are numerous Atlantic commercial and recreational fisheries that use other types of hook 

and line gear (e.g., rod and reel, handline, bandit gear). The impact of these fisheries on 

loggerheads likely varies depending on the fishing practices used, the area fished, and the 

concentration of effort. The magnitude of sea turtle capture and mortality associated with these 

fisheries is not known. In addition to commercial fisheries, the recreational hook and line fishery 

is extensive, particularly in the Southeast, where loggerheads are susceptible to fishing impacts 

year-round. Turtle captures on recreational hook and line gear are not uncommon, but the 

overall level of take and percent mortality are unknown. It is assumed that most turtles captured 

in the commercial and recreational hook and line fisheries are released alive, but ingested hooks 

and entanglement in associated monofilament or steel line have been documented as the probable 

cause of death for some stranded turtles (NMFS, unpublished data). Most reports of sea turtle 

captures are from fishing off piers, but there are also reports of offshore captures from both 

commercial and recreational fishermen. Divers have reported seeing dead loggerheads entangled 

in monofilament line on artificial reefs and shipwrecks where fishing effort is often concentrated. 

Gillnet (Demersal and Drift) Fisheries 

Although a detailed summary of gillnet fisheries operating off the Atlantic and Gulf coasts of the 

U.S. was presented in TEWG (1998, 2000), the lack of sea turtle mortality data for these 

fisheries precluded a quantitative analysis of their impacts on loggerhead populations. Many 

states (South Carolina, Georgia, Florida, Louisiana, and Texas) have prohibited gillnets, but 

there remain active fisheries in other states (especially the mid-Atlantic) and in Federal waters. 

Federal fisheries including the bluefish, monkfish, northeast multispecies, spiny dogfish, summer 

and southern flounder, Spanish and king mackerel, and shark fisheries all have gillnet 

components. The impact of some of these fisheries, particularly those using large mesh nets, 

could be significant. For example, in the spring of 2000, the monkfish fishery north of Cape 

Hatteras, North Carolina, was likely responsible for approximately 280 sea turtle strandings over 

a 2-week period (NMFS, unpublished data). In response to this event and other stranding events 

coinciding with increasing effort in offshore gillnetting, NMFS enacted seasonally adjusted 

restrictions to gillnetting in portions of the mid-Atlantic Exclusive Economic Zone (EEZ) in 
I-50

2003 (NMFS 2002b, 67 FR 71895). Similarly, in response to strandings and documented 

interactions, NMFS enacted a large mesh gillnet closure in Pamlico Sound, North Carolina, in 

2002. 

Pound Nets and Weirs 

Pound nets are fixed gear composed of a series of poles driven into the bottom upon which 

netting is suspended. Pound nets basically operate like a trap with the pound constructed of a 

series of funnels leading to a bag that is open at the top, and a long (200 to 400 m) linear “hedge” 

or leader of netting that extends from shallow to deeper water where the pound is located. In 

some configurations, the leader is suspended from the surface by a series of stringers or vertical 

lines. Sea turtles incidentally captured in the pound, which is composed of small mesh webbing, 

are usually safe from injury and may be released easily when the fishermen pull the nets 

(Mansfield et al. 2002a). However, sea turtle mortalities have been documented in the leader of 

certain pound nets. Large mesh leaders (greater than 12-inch stretched mesh) may act as a 

gillnet, entangling sea turtles by the head or foreflippers (Bellmund et al. 1987) or may act as a 

barrier against which turtles may be impinged (NMFS, unpublished data). Nets with small mesh 

leader (less than 8 inches) usually do not present a threat to loggerheads (Mansfield et al. 2002a, 

Morreale and Standora 1998, Epperly et al. 2000). Chesapeake Bay appears to be the primary 

location where pound nets with large mesh leaders are used (NMFS 2001). In the early 1980s, 3 

to 33% of all sea turtle mortalities in Virginia were attributed to large mesh leaders in the Bay 

(Bellmund et al. 1987). At that time, 173 such nets were fished. However, the fishery has 

declined since then and in 2000 only 20 large mesh nets remained in the Bay (Mansfield et al. 

2002a). In 2002, NMFS prohibited, in certain areas and at certain times in Chesapeake Bay, 

Virginia, pound nets with leaders having mesh greater than or equal to 12 inches and leaders 

with stringers. Epperly et al. (2007) reported observed captures of sea turtles from pound nets in 

the Pamlico-Albemarle Estuarine Complex, North Carolina, between 1995 through 1997 and 

2001 through 2003. They observed a total of 1,303 captures of sea turtles, of which 987 captures 

were loggerheads, two of those were observed dead. The pound net fishery in which these turtles 

were observed uses leaders with a stretched mesh size of approximately 6 to 8 inches (Epperly et 

al. 2007), which may account for the observed infrequent mortality. 

Similar to pound nets, weirs consist of a maze of nets and poles to trap schooling fish such as 

scup, herring, mackerel, and squid as they migrate through shallow waters. NMFS has several 

records of turtles, including loggerheads, captured in weirs (Ellen Keane, NMFS, personal 

communication, 2008). The magnitude of bycatch and mortality in this gear is currently 

unknown. 

Pots/Traps 

Pots/traps are commonly used to target crabs, lobsters, and fishes. These traps vary in size and 

configuration, but all are attached to a surface float by means of a vertical line leading to the trap. 

Turtles can become entangled in vertical lines below the surface of the water and subsequently 

drown. In other instances, stranded turtles have been recovered entangled in vertical lines with 

the trap in tow. Loggerheads may be particularly vulnerable to entanglement in vertical lines 

because of their attraction to, or attempts to feed on, baits and species caught in the traps and 
I-51

epibionts (living organisms) growing on traps, trap lines, and floats. Recently, a small number of 

loggerhead entanglements have been recorded in whelk pot bridles in the Mid-Atlantic States 

(Meredith Fagan, VIMS, personal communication, 2008). Approximately 0.4% of stranded 

loggerheads (1997-2005 average) were found entangled in pot/trap line from Maine through 

Texas (NMFS, unpublished data). 

Haul Seines and Channel Nets 

Haul seines and channel nets have been reported to take loggerheads in North Carolina (NMFS 

2001), but it is not known how many, if any, loggerhead mortalities are caused by these fisheries. 

In South Carolina, channel nets are required to use TEDs (Epperly et al. 2002). 

Purse Seines 

Purse seines are used in the Gulf of Mexico and along the Atlantic coast to capture bluefin tuna 

and menhaden. The tuna fishery is confined to water over the continental shelf, and no sea turtle 

mortalities have been observed in this fishery (NMFS 2001). The menhaden fishery is pursued 

close to the coast and in large estuaries such as Chesapeake Bay. Thus, the potential for 

loggerhead interactions with this fishery may be higher than for the tuna fishery. Although no 

interactions were observed between sea turtles and purse seines in a study of finfish bycatch in 

Chesapeake Bay (Herbert Austin, VIMS, personal communication, 2000), sea turtles trapped in 

menhaden purse seines might be impinged on the grates of inlet pipes used to suck the catch into 

the hold; however, recent observations indicate these grates are regularly monitored and 

loggerheads are not likely to be injured (Sheryan Epperly, NMFS, personal communication, 

2007). 

RESOURCE USE (NON-FISHERIES) 

Legal Harvest 

Loggerhead turtles have been harvested in waters of the northwest Atlantic for centuries as a 

source of protein and for other domestic uses. Currently, 32 of the 46 (70%) countries/territories 

in the northwestern Atlantic legislate complete protection of loggerhead turtles in their territorial 

waters (Appendix 3). The ESA prohibits the harvest of loggerhead turtles in U.S. territorial 

waters. However, 13 of 29 (45%) Caribbean countries/territories allow harvest of loggerheads. 

The loggerhead harvest in the Caribbean is generally restricted to the non-nesting season with the 

exception of St. Kitts and Nevis and the Turks and Caicos Islands. Most countries/territories that 

allow harvest have regulations that favor harvest of large juveniles and adults, the most 

reproductively valuable stages of the population. Exceptions include the Cayman Islands, which 

mandates maximum size limits, and Haiti and Trinidad and Tobago, which have no size 

restrictions. All Central and South American countries in the northwest Atlantic legislate 

complete protection of loggerheads in their territorial waters with the exception of Guyana. The 

North Atlantic islands of Bermuda, the Azores, Madeira, Cape Verde, and the Canary Islands 

have legislative prohibitions on the harvest of loggerhead turtles in territorial waters. 
I-52

Illegal Harvest 

Illegal directed harvest of juvenile and adult loggerhead turtles in the waters of the continental 

U.S. is uncommon, but no estimates of the level of take exist. In the Caribbean region, the 

illegal harvest of sea turtles has been reported in most jurisdictions where surveys were 

conducted. Bräutigam and Eckert (2006) documented illegal harvest of sea turtles in 26 

jurisdictions surveyed in the Lesser Antilles, Caribbean, and Central and South America. In 

some areas, illegal take of sea turtles was recognized as a serious management challenge 

although the extent to which loggerhead turtles were taken was not determined. Fleming (2001) 

reported the illegal harvest of sea turtles in 9 of 10 Caribbean countries surveyed although the 

level of exploitation of loggerheads was thought to be low as a result of the low overall 

abundance of loggerheads in the areas surveyed. 

Oil and Gas Activities 

Several activities associated with offshore oil and gas production, including oil spills, water 

quality (operational discharge), seismic surveys, explosive platform removal, platform lighting, 

and noise from drillships and production activities, are known to impact loggerheads. Currently, 

there are 3,443 federally regulated offshore platforms in the Gulf of Mexico dedicated to natural 

gas and oil production. Additional state-regulated platforms are located in state waters (Texas 

and Louisiana). There are currently no active leases off the Atlantic coast. 

Operational discharge of produced waters, drill muds, and drill cuttings are routinely discharged 

in marine waters as a result of petroleum production activities (MMS 2000). Loggerheads may 

bioaccumulate heavy metals found in drill muds resulting in debilitation or death. Oil 

exploration and development on live bottom areas may disrupt foraging grounds by smothering 

benthic organisms with sediments and drilling muds (Coston-Clements and Hoss 1983). 

The explosive removal of offshore oil and gas platforms is known to have impacts on 

loggerheads ranging from capillary damage, disorientation, loss of motor control, and mortality 

(National Research Council 1996, Viada et al. 2008). Klima et al. (1988) examined the effects 

of underwater explosions on sea turtles and found five of eight turtles exposed to explosions at 

distances varying between 229 m and 915 m were rendered unconscious. Loggerheads found 

closer to detonation sites would likely suffer fatal injuries. From 1987 to 2006, NMFS observers 

reported only one loggerhead mortality and three injured/stunned loggerheads during removal of 

approximately 1,700 offshore oil structures in the Gulf of Mexico (Gregg Gitschlag, NMFS, 

personal communication, 2007). The small number of sea turtles observed during platform 

removal may be a result of the inability of observers stationed at the surface to assess the impacts 

of explosions on submerged sea turtles. 

Petroleum seismographic cannons produce intense noise at both high and low frequencies and 

have the potential to harm sea turtles. Drillships and production facilities produce sound at 

varying frequencies and intensities that may influence turtle behavior (MMS 2000). Although 

sea turtles can hear low frequency sounds, they are generally considered to have an insensitive 

ear. The minimum sound turtles can hear (hearing threshold) is about 132 to 140 decibels 

(Ridgway et al. 1969, Bartol et al. 1999). Information on their behavioral response to these 
I-53

decibel levels is limited. Captive loggerhead turtles exposed to brief, audio-frequency vibrations 

initially showed startle responses of slight head retraction and limb extension (Lenhardt et al. 

1983). Sound-induced swimming has been observed for captive loggerheads (O'Hara and 

Wilcox 1990; Moein et al. 1994a, 1994b; Lenhardt 1994); some loggerheads exposed to lowfrequency sound responded by swimming toward the surface at the onset of the sound, 

presumably to lessen the effects of the transmissions (Lenhardt 1994). 

The impacts of offshore lighted oil production platforms on loggerheads are unknown. Lighted 

platforms may attract hatchlings, making them more susceptible to predation (de Silva 1982). 

Neritic juveniles and adults may be attracted by high prey concentrations around the structures, 

making them more susceptible to ingestion of petroleum products. 

For a discussion of the physiological effects of oil on loggerheads, see Oil Pollution in this 

section. 

Research and Conservation Management Activities 

Research and conservation management activities involving loggerhead turtles are many and 

varied throughout their U.S. range. Activities include directed capture in marine habitats to 

obtain information about life stage, health status, diet, reproductive status, etc. These activities 

are carefully regulated under the ESA, which requires that all activities affecting loggerhead 

turtles, including those of a research and conservation management nature, be formally 

authorized. NMFS has established permitting requirements to ensure that proposed research and 

conservation activities are necessary for recovery, carried out by appropriately trained persons, 

non-duplicative, the least manipulative possible, and carried out in such a way to minimize 

chances of mortality. The vast majority of authorized take for research and conservation 

management is non-lethal take. Annually, a low level of lethal take is authorized by both 

agencies for research and conservation purposes, primarily to cover the very low level of lethal 

take that may occur when using certain capture techniques (e.g., large mesh gillnets, trawls) and 

to cover lethal take that may occur during bycatch reduction experiments in commercial 

fisheries. Other countries (e.g., The Bahamas, Mexico) within the Northwest Atlantic have 

established permitting processes for research and conservation management activities to 

minimize negative impacts to loggerheads. 

Power Generation Activities 

The entrainment and entrapment of loggerheads in saltwater cooling intake systems of coastal 

power plants has been documented in New Jersey, North Carolina, Florida, and Texas (Eggers 

1989; National Research Council 1990a; Carolina Power and Light Company 2003; FPL and 

Quantum Resources, Inc. 2005; Progress Energy Florida, Inc. 2003). Average annual incidental 

capture rates for most coastal plants from which captures have been reported amount to several 

turtles per plant per year. One notable exception is the St. Lucie Nuclear Power Plant located on 

Hutchinson Island, Florida. During the first 15 years of operation (1977-1991), an average of 

128 loggerheads per year was captured in the intake canal with a mortality rate of 6.4%. During 

1991-2005, loggerhead captures more than doubled (average of 308 per year), while mortality 

rates decreased to 0.3% per year (FPL and Quantum Resources, Inc. 2005). 
I-54

In recent years, alternative energy sources (i.e., wind, wave, tidal, current) have received 

widespread global attention. Numerous projects are under consideration in state and Federal 

waters off most states, and a growing number are operating as pilots or test facilities. Based on 

preliminary plans and state mandates for renewable energy portfolios, dozens of wind or 

hydrokinetic projects representing many hundreds of individual turbines could be operating by 

2010. Wind power, generated by enormous windmills sited in neritic habitats, is cause for 

concern with regard to the effects of construction, artificial lighting, noise, and potential 

ecosystem alterations on loggerheads. The conversion of wave or tidal energy into power is 

cause for concern when these projects are located in loggerhead habitats, especially adjacent to 

nesting beaches. Each of these facilities is likely to be tethered to the seafloor and connected via 

benthic cables to the shore. 

Vessel Strikes 

Propeller and collision injuries from boats and ships are common in sea turtles. From 1997 to 

2005, 14.9% of all stranded loggerheads in the U.S. Atlantic and Gulf of Mexico were 

documented as having sustained some type of propeller or collision injuries although it is not 

known what proportion of these injuries were post or ante-mortem. The incidence of propeller 

wounds has risen from approximately 10% in the late 1980s to a record high of 20.5% in 2004 

(NMFS, unpublished data). Propeller wounds are greatest in southeast Florida (Palm Beach 

through Miami-Dade County); during some years, as many as 60% of the loggerhead strandings 

found in these areas had propeller wounds (FFWCC, unpublished data). 

Human Presence 

Human presence, especially in neritic habitats, can disturb both juvenile and adult loggerheads. 

The ever-growing human population in coastal areas and the corresponding increase in 

recreational boating, fishing, and diving can result in behavioral disturbances to resting, foraging, 

and migrating loggerheads. Continuous, intense boat traffic in neritic habitats may result in 

abandonment of previously used foraging or resting areas, and intense diver/snorkeler activity 

may result in displacement of loggerheads from preferred resting or foraging areas. 

 

Military Activities

Military maneuvers involving explosives and/or low frequency sonar may potentially harm 

loggerheads in all life stages, but information on the scope and extent of the impacts is not well 

known. Although sea turtles can hear low frequency sounds, they are generally considered to 

have an insensitive ear. The minimum sound turtles can hear (hearing threshold) is about 132 to 

140 decibels (Ridgway et al. 1969, Bartol et al. 1999). Information on their behavioral response 

to these decibel levels is limited. Captive loggerhead turtles exposed to brief, audio-frequency 

vibrations initially showed startle responses of slight head retraction and limb extension 

(Lenhardt et al. 1983). Sound-induced swimming has been observed for captive loggerheads 

(O'Hara and Wilcox 1990; Moein et al. 1994a, 1994b; Lenhardt 1994); some loggerheads 

exposed to low-frequency sound responded by swimming toward the surface at the onset of the 

sound, presumably to lessen the effects of the transmissions (Lenhardt 1994). 
I-55

Salvage Operations 

Efforts to salvage valuable artifacts from shipwrecks commonly entail extensive excavation of 

the sea floor. Because shipwreck sites are frequently located at reef and other hardbottom 

habitats, these excavations have the potential to detrimentally affect foraging and other habitats 

used by loggerheads. Excavation by salvers often entails redirected boat-prop wash to blow out 

sand and bottom materials in order to expose artifacts. This type of excavation may damage 

reefs, destroy benthic organisms, and increase local turbidity that may damage adjacent habitats. 

CONSTRUCTION AND DEVELOPMENT

Dredging 

Periodic dredging of sediments from navigational channels is necessary to provide for the 

passage of large commercial, military, and recreational vessels. In addition, sand mining 

(dredging) for beach renourishment occurs along the Atlantic and Gulf of Mexico. The negative 

impacts of dredging include destruction or degradation of habitat and incidental mortality of sea 

turtles. Channelization of inshore and nearshore habitat and the subsequent disposal of dredged 

material in the marine environment can destroy or disrupt resting or foraging grounds (including 

grass beds and coral reefs) and may affect nesting distribution by altering physical features in the 

marine environment (Hopkins and Murphy 1980). 

Capture and mortality of sea turtles by hopper dredges was identified as a problem in the late 

1970s. During a 3-month period in 1980, dredging operations in the Port Canaveral, Florida, 

ship channel were responsible for killing at least 71 sea turtles (National Research Council

1990a). To minimize mortality associated with hopper dredging, Dickerson et al. (1995) 

conducted a study to determine the seasonal abundance of sea turtles in southeast U.S. ship 

channels. Loggerheads were rarely captured when water temperatures fell below 16o

C. 

Subsequently, dredging activities in the southeast U.S. Atlantic were restricted to winter months 

when turtles are less abundant. Several other methods have been employed to reduce incidental 

capture and mortality of loggerheads in hopper dredges. The U.S. Army Corps of Engineers 

funded research to develop a plow-like deflector designed to push or move turtles away from the 

suction of the draghead (Nelson and Shafer 1996), but this is not always effective under certain 

conditions. In addition, shrimp trawlers have been employed to capture and relocate sea turtles 

prior to or during dredging operations. Relocation may be only partially effective because some 

turtles may return while dredging operations are still underway, and some turtles may escape 

capture and remain in the dredging area. Most of the loggerheads taken during dredging 

operations are juveniles. Observations during dredging projects in Texas and Florida suggest 

that sea turtles may be captured and killed during pipeline or cutterhead dredging operations 

(NMFS, unpublished data). However, interactions between slow moving cutterhead dredges and 

sea turtles are thought to be rare. Clamshell dredges have not been implicated in the incidental 

take of sea turtles. 
I-56

Channel and Bridge Blasting 

Using explosives to remove existing bridge or piling structures and to create or deepen 

navigation channels can result in injury or death of loggerhead turtles inhabiting the area (Klima 

et al. 1988; Barbara Schroeder, NMFS, personal communication, 2005). Effects of the 

explosion(s), depending upon proximity of the turtle to the explosive source(s), can include 

immediate lethal injuries, serious injuries leading to delayed mortality, or reduced fitness (e.g., 

inability to avoid predators, inability to properly feed). The frequency of blasting to create or 

deepen channels is low, averaging one to two actions annually in the Atlantic and Gulf. The use 

of explosives to remove bridges occurs more frequently, but at a low level of approximately five 

actions annually in the Atlantic and Gulf. 

Marina and Dock Development 

Developing marinas and private or commercial docks in inshore waters can negatively impact 

turtles through destruction or degradation of foraging habitat. Sanger and Holland (2002) found 

that docks were not a major source of environmental contamination in South Carolina; however, 

dock construction was associated with suburban development, which represented a major source 

of environmental degradation to tidal creeks and associated marsh habitats. Dock proliferation 

may also result in increased boat and vessel traffic and higher propeller and collision related 

mortality. Fueling facilities at marinas can result in the discharge of oil, gas, and sewage into 

sensitive estuarine habitats. 

Offshore Breakwaters 

The presence of breakwaters has the potential to attract and concentrate predatory fishes and 

provide perching spots for predatory birds, resulting in higher probabilities of hatchling 

predation as hatchlings begin their offshore migration. Hatchling predation in nearshore waters 

is variable and is observed to be considerably higher near submerged structures such as reefs 

(Witherington and Salmon 1992, Gyuris 1994, Wyneken and Salmon 1996). There are many 

documented occurrences of nearshore predators captured with hatchlings found in their digestive 

tracts (Stancyk 1982). During hatchling predation studies in Broward County, Florida, it was 

documented that predatory fish species targeted sea turtle hatchlings and learned where to 

concentrate foraging efforts (Glenn 1998, Wyneken et al. 1998). 

ECOSYSTEM ALTERATIONS

Trophic Changes from Fishery Harvest 

Anthropogenic disruptions of natural ecological interactions have been difficult to discern and 

few studies have been focused on the effects of these disruptions on loggerheads. Youngkin 

(2001) analyzed gut contents from hundreds of loggerheads stranded in Georgia over a 20-year 

period. His findings point to the probability of major effects on loggerhead diet from activities 

such as shrimp trawling and dredging. Lutcavage and Musick (1985) found that horseshoe crabs 

strongly dominated the diet of loggerheads in Chesapeake Bay in 1980-1981. Subsequently, 

fishermen began to harvest horseshoe crabs, primarily for use as bait in the eel and whelk pot 
I-57

fisheries, using several gear types. Atlantic coast horseshoe crab landings increased by an order 

of magnitude (0.5 to 6.0 million pounds) between 1980 and 1997, and in 1998 the Atlantic States 

Marine Fisheries Commission implemented a horseshoe crab fishery management plan to curtail 

catches (ASMFC 1998). The decline in horseshoe crab availability has apparently caused a diet 

shift in juvenile loggerheads, from predominantly horseshoe crabs in the early to mid-1980s to 

blue crabs in the late 1980s and early 1990s, to mostly finfish in the late 1990s and early 2000s 

(Seney 2003, Seney and Musick 2007). These data suggest that turtles are foraging in greater 

numbers in or around fishing gears and on discarded bycatch (Seney 2003). Studies on the 

effects of fishing activities on loggerhead prey and foraging ecology are urgently needed to 

assess the magnitude of this threat and to provide information for addressing it. 

Trophic Changes from Benthic Habitat Alteration 

Benthic habitat alteration by mobile fishing gear, especially trawls and dredges, constitutes a 

globally significant physical disturbance to the marine environment and has significant effects on 

marine biodiversity (Watling and Norse 1998). Mobile fishing gear has been shown to result in 

short and long-term changes in benthic community composition, including species groups on 

which loggerheads forage (Gordon et al. 1998). The National Research Council (1994) found 

that habitat alteration by fishing activities is perhaps the least understood of the important 

environmental effects of fishing. The effects of benthic habitat alteration on loggerhead prey 

abundance and distribution, and the effects of these potential changes on loggerhead populations, 

have not been determined but are of concern. 

Aquaculture 

Aquaculture netting, particularly large mesh sizes, may entangle and drown sea turtles. The 

larger the mesh size, the greater the probability of entanglement (although even very small mesh 

can entangle a turtle, often wrapping around the nail on the rear or foreflippers). The more slack 

in the net, the greater the probability of entanglement. Such entanglement can result in a minor 

injury, or it can develop into a life-threatening condition (Moore and Wieting 2000). Studies 

have shown that sea turtle hatchlings (certain species in certain areas) migrate offshore after 

hatching and become associated (and dependent upon) floating rafts of seaweed (e.g., 

Sargassum) and other flotsam. Net pens and associated aquaculture structures, depending on 

their siting, may “collect” seaweed rafts or interfere with their natural passive movements and, 

therefore, may entangle, capture, or disrupt migratory movements of post-hatchling or pelagicstage sea turtles. 

Anthropogenic lighting has been well documented to misorient hatchling turtles during their 

transit from nest to sea (see the section on Lighting Pollution under H.1. Pollution) and has also 

been documented to misorient hatchlings after their entry into the sea. Studies have also shown 

that nesting female turtles can be deterred from nesting and/or misoriented at the nesting beach 

by artificial lights. Artificial lighting at aquaculture facilities, depending on their siting, may 

misorient hatchlings and/or adult females in the proximity of nesting beaches. No studies have 

been conducted on the effects of artificial lighting offshore of nesting beaches, but such studies 

must be a component of any thorough investigation into the impacts of aquaculture on sea turtles. 
I-58

The location of aquaculture facilities should take into consideration proximity of nesting 

beaches, foraging habitat, and migratory pathways of sea turtles. Additional research will be 

needed as aquaculture sites are selected or considered. Vessel strikes are a significant threat to 

sea turtles in certain areas of high vessel traffic. Increases in vessel traffic that result from 

aquaculture operations must be evaluated with respect to effects on resident or migratory sea 

turtle populations. Documentation and characterization of the effects of aquaculture on disease, 

predation, and alteration of behavior of sea turtles are needed. 

Eutrophication 

Eutrophication is a condition in aquatic ecosystems where high nutrient concentrations can 

stimulate harmful algal blooms. Human activities can greatly accelerate eutrophication by 

increasing the rate at which nutrients and organic substances enter aquatic ecosystems from 

surrounding watersheds. Agricultural runoff, urban runoff, leaking septic systems, sewage 

discharges, and similar sources can increase the flow of nutrients and organic substances into 

aquatic systems. Eutrophication caused by excessive nutrient pollution in coastal waters can 

affect sea turtles both directly and indirectly (Milton and Lutz 2003). 

Algal blooms cloud the water and block sunlight, causing underwater seagrasses to die. 

Secondly, when algae die and decompose, oxygen is used up. This is a concern because 

dissolved oxygen in the water is essential to most organisms living in the water, including fish 

and crabs, which are prey items for loggerheads. The effects of large-scale eutrophication on 

resident sea turtle populations currently are unknown because of the lack of in-water population 

studies in affected areas (Milton and Lutz 2003). 

POLLUTION

Marine Debris Entanglement 

Loggerheads have been found entangled in a wide variety of materials, including steel and 

monofilament line, synthetic and natural rope, plastic onion sacks, and discarded plastic netting 

materials (Balazs 1985; Plotkin and Amos 1988; NMFS, unpublished data). From 1997 to 2005, 

1.6% of stranded loggerheads found on Atlantic and Gulf of Mexico beaches were entangled in 

fishing gear. Monofilament line appears to be the principal source of entanglement for 

loggerheads in U.S. waters (0.9%; 1997-2005 average), followed by pot/trap line (0.4%; 1997-

2005 average) and fishing net (0.3%; 1997-2005 average). Less than 1% of stranded sea turtles 

in 2005 were found entangled in other marine debris (NMFS, unpublished data). From 1991 

through 2005, the annual percent occurrence of entanglement for Florida sea turtle strandings 

ranged from 2.8 to 7.6% (mean=4.7%, SD=1.18%) (FFWCC, unpublished data). Records from 

Florida indicate that some entanglements result from netting and monofilament line that has 

accumulated on both artificial and natural reefs. These areas are often heavily fished, resulting 

in snagging of hooks and discarding of lines. Turtles foraging and/or resting in these areas can 

become entangled and drown (FFWCC, unpublished data). The alignment of persistent marine 

debris along convergences, rips, and driftlines, and the concentration of young sea turtles along 

these fronts, increases the likelihood of entanglement at this life history stage (Carr 1987, 

Witherington 2002). 
I-59

Marine Debris Ingestion 

Sea turtles have been found to ingest a wide variety of debris items, such as plastic bags, raw 

plastic pellets, plastic and styrofoam pieces, tar balls, and balloons. In a review of available 

information on debris ingestion, Balazs (1985) reported that tar balls were the second most 

prevalent type of debris ingested by sea turtles. Effects of debris ingestion can include direct 

obstruction of the gut, absorption of toxic byproducts, and reduced absorption of nutrients across 

the gut wall (Balazs 1985). Studies conducted by Lutz (1990) revealed that both loggerhead and 

green turtles actively ingested small pieces of latex and plastic sheeting. Physiological data 

indicated a possible interference in energy metabolism or gut function, even at low levels of 

ingestion. Persistence of the material in the gut lasted from a few days to 4 months (Lutz 1990). 

Sublethal effects of debris ingestion have an unknown, but potentially great, negative effect on 

the demography of sea turtles (Bjorndal et al. 1994). 

Convergence lines, including Sargassum rafts, constitute an important habitat for neonate and 

juvenile loggerheads (Witherington 2002). Convergence at these habitats sweeps together 

neonate sea turtles with the floating substrates they forage among, but these same forces also 

concentrate buoyant petroleum, plastics, and other anthropogenic debris. Neonate loggerheads 

ingest this debris at a high frequency and incur mortality from its effects. Witherington and 

Hirama (2006) reported that of 83 post-hatchling loggerheads stranded in east Florida, 83.1% 

had ingested plastics and 33.7% had ingested tar. 

Oil Pollution 

The deleterious effects of oil pollution on sea turtles have been well documented (Lutcavage et 

al. 1997). Exposure to petroleum products can be fatal to all lifestages of loggerheads (Vargo et 

al. 1986). Vargo et al. (1986) reported that sea turtles would be at substantial risk if they 

encountered an oil spill or large amounts of tar in the environment. Turtles in oil slicks 

experience prolonged physical contact with floating oil. This contact can cause significant 

changes in respiration, diving patterns, energy metabolism, and blood chemistry. For example, 

physiological observations have shown that sea turtles exposed to petroleum products may suffer 

esophageal impactions and lesions, inflammatory dermatitis, ventilatory disturbance, salt gland 

dysfunction or failure, red blood cell disturbances, immune response, and digestive disorders 

(Vargo et al. 1986, Lutz and Lutcavage 1989, Lutcavage et al. 1995, Orós et al. 2004). The 

turtle salt glands appear particularly sensitive to oil pollution. Prolonged salt gland failure 

interferes with water balance and ion regulation and may be fatal (Lutcavage et al. 1997). 

Annually about 1% of all sea turtle strandings along the U.S. east coast have been associated 

with oil, but higher rates of 3 to 6% have been observed in South Florida and Texas (Teas 1994, 

Rabalais and Rabalais 1980, Plotkin and Amos 1990). 

Chemical Pollution 

Pollution sources other than oil that may affect sea turtles include persistent chlorinated 

hydrocarbons and heavy metals. Long-lived carnivorous species, such as loggerheads, would 

tend to bioaccumulate these compounds (Rybitski et al. 1995, Lutcavage et al. 1997). However, 
I-60

organochlorine concentrations found in sea turtles have been much lower than those found in 

marine mammals and birds (George 1997), probably due to the much lower metabolic rates of 

sea turtles. The impacts of these compounds have been shown to have deleterious effects on 

loggerheads (Keller et al. 2004, 2006). Keller et al. (2004) found that widespread and persistent 

organochlorine contaminants, such as polychlorinated biphenyls (PCBs) and pesticides, may be 

affecting the health of loggerheads even though sea turtles accumulate lower concentrations of 

organochlorine contaminants compared with other wildlife. Keller et al. (2004) found significant 

correlations for a wide variety of biological functions, suggesting, for example, changes in the 

immune system, possible liver damage, and possible alterations in protein and carbohydrate 

regulation. However, the authors cautioned that the correlations suggest, but do not prove, a 

cause and effect link. Researchers have also collected baseline information on heavy metal 

contamination in loggerhead populations at several locations throughout the southeast U.S. (Day 

et al. 2005, 2007). 

Organic contaminants, such as perfluorinated compounds (Keller et al. 2005, Peden-Adams et al. 

in press) and brominated flame retardants (Carlson et al. in press), have been measured in 

loggerheads. Perfluorinated contaminants were correlated with several health parameters, 

including plasma chemistries and immune function (Peden-Adams et al. in press). Loggerheads 

also may be affected by other compounds, including pharmaceuticals. 

Noise Pollution 

Noise pollution from a number of sources including shipping and military activities may have 

negative non-lethal effects (e.g., alteration of migration routes, avoidance of foraging areas) on 

neritic loggerheads. Samuel et al. (2005) recorded underwater sound in the Peconic Bay Estuary 

system in Long Island Sound, New York, during a period that coincided with the sea turtle 

activity season and suggested that continued exposure to high levels of noise and any increase 

could affect sea turtle behavior and ecology. No estimates on the extent of this threat are 

available. For a discussion of the effects of noise pollution resulting from oil and gas activities, 

see Oil and Gas Activities in this section. 

Thermal Pollution 

Coastal power plants use estuarine or ocean water as a cooling source and result in the discharge 

of heated water to nearshore habitats. Alteration of natural temperature regimes within the 

discharge area can lower dissolved oxygen content and alter habitats by altering the composition 

of species, including loggerhead prey items. Loggerheads may avoid or be attracted to these 

heated waters, depending on ambient water temperatures in surrounding areas. 

Desalinization Plant Pollution 

Little is known about the potential impacts of desalinization plant discharges on sea turtles and 

their habitats. At a minimum, discharges should be placed to ensure that effluent does not 

directly impact seagrass beds, live coral reef, or other important sea turtle habitats. 
I-61

SPECIES INTERACTIONS

Predation 

Large sharks may prey upon neritic stage loggerheads. Tiger sharks (Galeocerdo cuvieri) and 

bull sharks (Carcharhinus leucas) are the species most often reported to contain sea turtle 

remains (Compagno 1984, Simpfendorfer et al. 2001, Witzell 1987). Predation by white sharks 

(Carcharodon carcharias) has also been reported (Fergusson et al. 2000). The magnitude of 

loggerhead mortality caused by sharks in the Northwest Atlantic is unknown. A study that took 

place in Western Australia showed that loggerheads incurred shark-bite injuries at a greater 

frequency than green turtles (Heithaus et al. 2002). 

Disease and Parasites

Loggerheads are affected by a variety of health problems, although relatively few diseases have 

been documented in wild populations. At least two bacterial diseases have been described in 

wild loggerhead populations, including bacterial encephalitis and ulcerative 

stomatitis/obstructive rhinitis/pneumonia (George 1997), and Bartonella was recently reported in 

wild loggerheads from North Carolina (Valentine et al. 2007). There are few reports of fungal 

infections in wild loggerhead populations. Homer et al. (2000) documented systemic fungal 

infections in stranded loggerheads in Florida. Both bacterial and fungal infections are common 

in captive sea turtles (Herbst and Jacobson 1995, George 1997). 

Viral diseases have not been documented in free-ranging loggerheads, with the possible 

exception of sea turtle fibropapillomatosis, which may have a viral etiology (Herbst and 

Jacobson 1995, George 1997). Although fibropapillomatosis reaches epidemic proportions in 

some wild green turtle populations, the prevalence of this disease in most loggerhead populations 

is thought to be small. An exception is Florida Bay where approximately 9.5% of the 

loggerheads captured exhibit fibropapilloma-like external lesions (Barbara Schroeder, NMFS, 

personal communication, 2006). 

A variety of endoparasites, including trematodes, tapeworms, and nematodes have been 

described in loggerheads (Herbst and Jacobson 1995). Heavy infestations of endoparasites may 

cause or contribute to debilitation or mortality in sea turtles. Trematode eggs and adults were 

seen in a variety of tissues including the spinal cord and brain of debilitated loggerheads during 

an epizootic in South Florida during late 2000 and early 2001. These were implicated as a 

possible cause of the epizootic (Jacobson et al. 2006). 

Ectoparasites, including leeches and barnacles, may have debilitating effects on loggerheads. 

Large marine leech infestations may result in anemia and act as vectors for other diseaseproducing organisms (George 1997). Barnacles are generally considered innocuous although 

some burrowing species may penetrate the body cavity resulting in mortality (Herbst and 

Jacobson 1995). 

Although many health problems have been described in wild populations through the necropsy 

of stranded turtles, the significance of diseases on the ecology of wild loggerhead populations is 
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not known (Herbst and Jacobson 1995). Several researchers have initiated health assessments to 

study health problems in free-ranging turtle populations. Sampling methods for these 

assessments have included capturing sea turtles with modified shrimp nets (Segars et al. 2005), 

capturing turtles in commercial pound nets (Harms et al. 2006a, 2006b; Kelly et al. in press), and 

sampling adult females on nesting beaches (Deem et al. 2003). To date, these assessments have 

focused on establishing normal baseline blood chemistry values and conducting physical exams. 

As more assays become available, researchers hope to assess the prevalence of infectious 

diseases in wild loggerhead populations. 

Harmful Algal Blooms 

A red tide is a higher-than-normal concentration of microscopic algae. In Florida, the species 

that causes most red tides is Karenia brevis, a type of microalgae known as a dinoflagellate 

(Florida Marine Research Institute 2003). This organism produces a toxin that has been 

documented as a mortality factor in birds and marine mammals and is a suspected mortality 

factor in sea turtles. During four red tide events along the west coast of Florida, sea turtle 

stranding trends indicated that these events were acting as an additional mortality factor (Redlow 

et al. 2003). Sea turtles that washed ashore alive during these red tide events displayed 

symptoms that were consistent with acute brevitoxicosis (e.g., uncoordinated and lethargic but 

otherwise robust and healthy in appearance) and completely recovered within days of being 

removed from the area of the red tide. The concentration of brevitoxin in the livers of eight 

turtles, including one loggerhead, that were found dead during red tides ranged from 10-330 

nanograms per gram. These concentrations were similar to the concentrations of brevitoxin 

found in Florida manatees (Trichechus manatus latirostris) that were determined to have died 

from brevitoxicosis. Concentrations of brevitoxin in the livers of two dead loggerheads that did 

not strand during red tides were less than 0.05 nanograms per gram (Redlow et al. 2003). 

Although the organism that causes Florida’s red tide is found almost exclusively in the Gulf of 

Mexico, harmful algal blooms have been found off the Atlantic coast of Florida, and a bloom 

was detected off the coast of North Carolina in 1987. Scientists believe the Florida Current and 

Gulf Stream Current carried Karenia brevis out of the Gulf of Mexico, around south Florida, and 

up to the Carolina coast. Other types of microorganisms cause different kinds of harmful algal 

blooms in other parts of the world as well (Florida Marine Research Institute 2003). 

OTHER FACTORS

Climate Change 

Impacts from climate change, especially due to global warming, are likely to become more 

apparent in future years (IPCC 2007a). The global mean temperature has risen 0.76oC over the 

last 150 years, and the linear trend over the last 50 years is nearly twice that for the last 100 years 

(IPCC 2007a). There is a high confidence, based on substantial new evidence, that observed 

changes in marine systems are associated with rising water temperatures, as well as related 

changes in ice cover, salinity, oxygen levels, ocean acidification, and circulation. These changes 

include shifts in ranges and changes in algal, plankton, and fish abundance (IPCC 2007b), which 

could affect loggerhead prey distribution and abundance. 
I-63

Natural Catastrophes 

Storm events causing turbulence and currents during the nesting season can wash post-hatchling 

turtles up on the beach with algae and flotsam (Carr and Meylan 1980). Post-hatchlings, or 

washback hatchlings, are turtles that have left nesting beaches, spent weeks or months at sea, and 

are then washed back onto the beach with seaweed during storm events. Storm systems may also 

result in benthic habitat alterations influencing the abundance and diversity of prey species for 

loggerheads. Similarly, prolonged drought conditions may influence estuarine ecosystems and 

reduce the abundance of important food resources, such as blue crabs. 

Cold Water 

Loggerheads are susceptible to cold stunning, a phenomenon in which turtles become 

incapacitated as a result of rapidly dropping water temperatures (Witherington and Ehrhart 1989, 

Morreale et al. 1992). As temperatures fall below 8-10o

C, turtles may lose their ability to swim 

and dive, often floating to the surface. It appears to be the rate of cooling that precipitates cold 

stunning rather than the water temperature itself (Milton and Lutz 2003). Sea turtles that 

overwinter in inshore waters are most susceptible to cold stunning, because temperature changes 

are most rapid in shallow water (Witherington and Ehrhart 1989). 

H.3. OCEANIC ZONE

RESOURCE USE (FISHERIES) 

A major threat to the survival of loggerheads during the oceanic stage is the risk of incidental 

capture in commercial fisheries. Indirect take in fisheries, whether it is the high seas driftnets, 

longlines, or other fisheries, is a very serious problem for juvenile turtles (National Research 

Council 1990a, Wetherall et al. 1993, Balazs and Pooley 1994, Witzell 1999, Bolten et al. 2000). 

Gillnet (Drift) Fisheries 

Prior to the United Nations General Assembly (UNGA) resolution prohibiting large-scale highseas driftnet fishing, bycatch of oceanic juvenile turtles was significant and well documented, at 

least in the Pacific (Wetherall et al. 1993). UNGA Resolution 44/225, adopted in 1990, called 

for a moratorium on the use of driftnet fishing gear on the high seas by June 30, 1992. This 

Resolution was supplanted by UNGA Resolution 46/215, which delayed the effective date of the 

moratorium until December 31, 1992. As of December 2007, the UNGA global moratorium on 

large-scale high seas driftnet fishing has been in effect for 15 years. International 

implementation of the moratorium in the world's oceans and enclosed/semi-enclosed seas 

continues to be generally successful, although problem areas remain in the North Pacific Ocean 

and the Mediterranean Sea. 
I-64

Longline Fisheries 

Incidental take of oceanic-stage loggerheads in swordfish pelagic longline fisheries has recently 

received a lot of attention (Balazs and Pooley 1994; Bolten et al. 1994, 2000; Aguilar et al. 1995; 

Laurent et al. 1998; Long and Schroeder 2004; Watson et al. 2005). The mean size CCL (± 

standard deviation) for loggerheads captured in the swordfish fishery in the Azores during an 

experiment conducted in 2000 was 49.8 ± 6.2 cm CCL (n = 224; ACCSTR, unpublished data), 

which is significantly larger (p<0.001, Kolmogorov-Smirnov test, ks = 0.6528) than the mean of 

the overall oceanic-stage population, 34.5 ± 12.6 cm CCL (n = 1692, Bolten 2003). The 

swordfish longline fishery affects the largest size classes of loggerheads in the oceanic stage 

(Bolten 2003). Earlier studies in Azorean waters documenting swordfish longline captures show 

similar size classes impacted by that fishery (Bolten et al. 1994, Ferreira et al. 2001). There are 

no estimates of mortality of turtles caught and released in the swordfish fishery in the Azores. 

The demographic consequences relative to population recovery of the increased mortality of 

these size classes have been discussed (Crouse et al. 1987; see also Heppell et al. 2003b and 

Chaloupka 2003). 

Similar size classes of loggerheads are impacted by longline fisheries in other regions. In the 

western Mediterranean, the mean size of loggerheads caught in drifting longline fisheries was 

47.4 ± 10.4 cm CCL (n = 62) and 45.9 ± 7.5 cm CCL (n = 53) in the eastern Mediterranean 

(Laurent et al. 1998). Witzell (1999) reported a mean size of 55.9 ± 6.5 cm CCL (n = 98) for 

loggerheads caught in the longline fishery from the Northwest Atlantic, primarily the Grand 

Banks, Newfoundland, Canada. More recently, Watson et al. (2005) reported a similar size for 

loggerheads caught during a longline bycatch reduction experiment conducted in the Northwest 

Atlantic (range = 32.4-68.0 cm SCL, mean 56.8 cm SCL, n = 93). 

Results from satellite telemetry with satellite-linked time-depth recorders have demonstrated the 

potential negative impacts of longline hooking on dive behavior and movement patterns of 

oceanic juveniles. Following release, hooked turtles have significantly reduced diving behavior 

(e.g., shallower dive depths) and their movements appear to be influenced to a greater extent by 

ocean currents (i.e., the turtles are less active swimmers and drift with the current) (ACCSTR, 

unpublished data). 

Numerous other fisheries impact oceanic-stage loggerhead populations, and new ones continue 

to emerge. For example, the fishery for black scabbard (Aphanopus carbo) in Madeira has 

significant bycatch of oceanic-stage loggerheads (Dellinger and Encarnacao 2000). This fishery 

is currently under investigation for development in the Azores. 

RESOURCE USE (NON-FISHERIES)

Legal Harvest and Illegal Harvest 

Directed take of loggerheads in the oceanic zone is for both food and the souvenir trade in 

polished shells or whole stuffed turtles. The once-popular souvenir trade in Madeira, Portugal, 

combined with harvest for meat, accounted for between 1,000 and 4,000 loggerhead deaths 

annually (Brongersma 1982). Turtle harvest is now illegal in Madeira, but still exists in other 
I-65

regions. The extent of legal and illegal take of loggerheads needs to be quantified (e.g., Fleming 

2001, Nada 2001). 

Vessel Strikes 

Increased tourism into sensitive sea turtle habitats (e.g., whale watching and sport/recreational 

fishing) may increase the frequency of boat collisions. There are currently no data available to 

evaluate this threat. 

Oil and Gas Activities 

Oil and gas activities can affect oceanic loggerheads. For a discussion of the effects of oil and 

gas activities, see the section on Oil and Gas Activities under H.2. Neritic Zone. 

Research and Conservation Management Activities 

For a discussion of the effects of research and management activities, see the section on 

Research and Management Activities under H.2. Neritic Zone. 

Military Activities 

For a discussion of the effects of military activities on the marine environment, see the section on 

Military Activities under H.2. Neritic Zone. 

ECOSYSTEM ALTERATIONS

Trophic Changes from Fishery Harvest and Habitat Alteration 

Oceanic ecosystems are changing as a result of overfishing and pollution. Selective, and usually 

intense, harvest of species in fisheries will result in changes to the suite of species interactions in 

this ecosystem (e.g., predator-prey interactions, trophic dynamics and food webs; see Bjorndal 

2003). Changes in trophic dynamics may have a major impact on sea turtles; however, data are 

lacking to quantify these impacts. Changes to trophic interactions may affect availability of prey 

for loggerheads, and loggerheads may become prey to a new suite of predators following foodweb alterations. Decreasing food resources for loggerheads could result in sublethal effects in 

the form of decreased growth rates and reproductive output (Bjorndal 2003). Such sublethal 

effects will be difficult to discern because our knowledge of rates of food intake and rates of 

growth is poor (Bjorndal 2003). Similar changes to trophic dynamics in this ecosystem can 

occur from the toxic effects of pollution. 
I-66

SPECIES INTERACTIONS

Predation 

Oceanic-stage loggerheads are preyed upon by sharks, killer whales (Orcinus orca), and 

probably any large carnivorous fish or mammals in this habitat (Bjorndal 2003). There are no 

estimates of predation of loggerheads in this life stage.

Disease 

There are no definitive reports of sea turtle fibropapilloma disease for oceanic-stage loggerheads.

POLLUTION

Oil and Other Chemical Pollution 

Toxic effects of pollution (e.g., oil, gas, heavy metals) can have direct effects on turtles 

(Lutcavage et al. 1997) or can alter the habitat by affecting trophic dynamics. For a discussion 

of the effects of oil pollution, see the section on Oil Pollution under H.2. Neritic Zone. For a 

discussion of the effects of chemical pollution, see the section on Chemical Pollution under H.2. 

Neritic Zone. 

Noise Pollution 

Noise pollution from a number of sources, including shipping and military activities, may have 

negative non-lethal effects (e.g., alteration of migration routes, avoidance of foraging areas) on 

oceanic loggerheads. No estimates on the extent of this threat are available. For a discussion of 

the effects of noise pollution resulting from oil and gas activities, see the section on Oil and Gas 

Activities under H.2. Neritic Zone. 

Marine Debris Ingestion and Entanglement 

The lethal and sublethal effects of debris ingestion and entanglement are also major concerns 

(Balazs 1985, Carr 1987, McCauley and Bjorndal 1999, Witherington 2002). The open ocean is 

full of debris, and little loggerheads frequently ingest plastics, tar, styrofoam, and monofilament 

(Carr 1987, Witherington 2002). This ingestion, as well as entanglement, can be lethal. The 

sublethal effects from marine debris ingestion may also have severe consequences, but are 

difficult to quantify. During laboratory feeding trials, post-hatchling loggerheads were not able 

to adjust their intakes to counter nutrient dilute diets similar to what turtles would experience 

when ingesting debris (McCauley and Bjorndal 1999). However, the authors suggest that with 

increasing size, turtles may be better able to adjust their intakes. 
I-67

OTHER FACTORS

Climate Change 

For a discussion of the effects of climate change on the marine environment, see the section on 

Climate Change under H.2. Neritic Zone. 

Natural Catastrophes 

Hurricanes and other major storm events can have significant short-term effects on trophic 

dynamics (see the section on Trophic Changes from Fishery Harvest and Habitat Alteration 

under H.3. Ecosystems Alterations).

Cold Water 

Oceanic-stage juvenile loggerheads can be carried by currents into waters with temperatures 

below their lethal minimum (Hays and Marsh 1997) resulting in mortality. Cold water can also 

result in sub-lethal effects (Schwartz 1978). 

I. MAJOR CONSERVATION EFFORTS

The following section summarizes, primarily for the U.S., the major conservation efforts 

intended to reduce or remove threats to the loggerhead. These efforts have been conducted by 

Federal, state, and local agencies, private organizations, academia, and individuals. This section 

is not intended to be an exhaustive list of every conservation action undertaken. 

I.1. TERRESTRIAL ZONE (NESTING BEACH)

In the southeast U.S., nest and beach habitat protection efforts are underway for most of the 

significant nesting areas, and progress has been made in reducing mortality from human-related 

impacts on the nesting beach. 

Efforts to Acquire Nesting Habitat

The Archie Carr National Wildlife Refuge (NWR), located in Brevard and Indian River counties, 

Florida, represents the United States’ most significant land acquisition effort to protect the 

loggerhead. The acquisition plan for the refuge set a goal for purchase of 15.0 km (9.3 miles) of 

beach within a 32.7-km (20.3-mile) stretch where nesting densities often exceed 600 nests per 

km (1,000 nests per mile). The establishment of the Archie Carr refuge was made possible by a 

multi-agency land acquisition effort. Partners in this effort include the FWS, FDEP, Brevard 

County, Indian River County, Richard King Mellon Foundation, The Conservation Fund, and 

The Nature Conservancy. Over 60% of the available beachfront acquisitions for the Refuge have 

been completed. FWS has 14 additional refuges in the Southeast where loggerheads regularly 

nest and are provided protection. Numerous coastal national seashores, military installations, 

and state parks in the Southeast also provide protection for loggerheads on their lands. 
I-68

Efforts to Minimize Effects of Beach Nourishment 

During ESA section 7 consultations for beach nourishment projects, FWS places conditions on 

projects to minimize impacts to sea turtles. Minimization measures include nest relocation to 

non-project areas when nourishment is conducted during the nesting season, use of beach quality 

sand, sand compaction and escarpment monitoring and remediation, and management of project 

lighting. 

Efforts to Reduce Light Pollution on Nesting Beaches 

Effects of light pollution on sea turtles are most extensive in Florida due to dense coastal 

development. FFWCC advertises the State of Florida's Model Lighting Ordinance 

[http://myfwc.com/seaturtle] as an example for local governments to follow. As of January 

2008, there were 19 counties and 57 municipalities with lighting ordinances 

[http://myfwc.com/seaturtle/Lighting/Light_Ordinance.htm]. Enforcement of mandatory lighting 

ordinances has increased, and Florida counties with the highest loggerhead nesting (Brevard 

through Palm Beach) appear to have the best compliance. In addition, FFWCC, working in close 

coordination with FWS, has developed a sea turtle lighting certification program that involves 

conducting workshops to educate all interested parties about the effects of lighting on sea turtles, 

the best lighting options to use near sea turtle nesting beaches, and the wide variety of light 

fixtures and bulbs available to manage lighting on their properties without negatively impacting 

sea turtles. 

A significant number of beaches outside of Florida have lighting ordinances designed to reduce 

the effects of artificial lighting on sea turtles. All developed beaches in South Carolina and 

Georgia have lighting ordinances with the exception of Horry County, South Carolina (excluding 

Waites Island). In North Carolina, five municipalities have adopted lighting ordinances to 

protect sea turtles. 

Efforts to Elucidate Effects of Barriers to Sea Turtle Nesting

During 2001 and 2002, FFWCC sampled stretches of beach in Florida to measure the extent of 

barriers (e.g., armoring, sand fences, recreational beach equipment, etc.) to sea turtle nesting 

(Witherington et al. 2003). Total surveyed coastline among four regions of Florida (northeast, 

southeast, northwest, and southwest) was 321.8 km and made up 24.5% of Florida’s coastline. 

In an assessment summed for all regions, barriers occupied 18.0% of the total surveyed beach 

length. The region with the greatest extent of barriers was southeast Florida, followed by 

southwest, northwest, and northeast Florida. Seawalls were the most common barrier in all but 

the northwest region, where sand fences were most common. South Florida had 3.5 times the 

linear extent of seawalls on North Florida beaches. Barriers with a high impediment to nesting 

made up the majority, and most high-impediment barriers also had high permanency. Although 

the assessment did not include structures that were hidden from view by sand or other structures, 

it does provide a baseline to study spatial and temporal changes in nesting habitat suitability.
I-69

Efforts to Reduce Nest Predation 

The most longstanding beach management program has been to reduce the destruction of nests 

by natural and introduced predators. Most major nesting beaches in the southeast U.S. employ 

some type of lethal (trapping, hunting) or nonlethal (screen, cage) control of mammalian 

predators to reduce nest loss. In 2002, over 90% of known loggerhead nests in North Carolina 

and Georgia were protected with a wire or plastic screen or cage (GDNR, unpublished data; 

NCWRC, unpublished data). In Florida and South Carolina, screens or cages were employed on 

47% and 57% of nests, respectively (FFWCC, unpublished data; SCDNR, unpublished data). 

Predator removal (trapping, hunting) was used to reduce feral hog, raccoon, and fox depredation 

on approximately 10% of beaches in North Carolina, South Carolina, and Florida. Predator 

control efforts are also underway in Virginia and Alabama. In Georgia, 42% of nest protection 

projects used trapping and hunting to reduce feral hog populations. Throughout the southeast 

U.S., lethal methods were more commonly employed on undeveloped beaches where 

mammalian depredation is high. Overall, nest protection activities have substantially reduced 

loggerhead nest depredations, although the magnitude of the reduction has not been quantified. 

Efforts to Reduce Effects of Beach Cleaning on Nesting Beaches

Beach cleaning is an activity most common in southern Florida; 16 urban counties have received 

beach-cleaning permits from FDEP. FDEP and FFWCC have set beach cleaning permit 

conditions pursuant to Rule 62B-33.005(11) of the Florida Administrative Code that restrict the 

timing and nature of beach cleaning. Permit conditions include limiting beach cleaning activities 

to daylight hours only, limiting cleaning activities to the average high tide mark or debris line 

and seaward in some areas, ensuring a daily sea turtle nesting survey has been completed before 

cleaning activities are conducted, marking nests for avoidance, using vehicles with a maximum 

tire pressure of 10 p.s.i. and a rake or cleaning apparatus that limits penetration into the surface 

of the beach to a maximum of 2 inches, removing accumulated debris from the beach 

immediately after cleaning has been performed, and avoiding all native, salt tolerant dune 

vegetation by a minimum of 10 feet. 

Efforts to Reduce Effects of Beach Vehicular Driving 

Beach driving is prohibited on the majority of nesting beaches in the southeast U.S.; however, 

there are some areas where beach driving still occurs, such as Volusia County, Florida. In 1996, 

Volusia County developed a habitat conservation plan (HCP) to minimize and mitigate the 

impacts of County-regulated driving on 57.3 km (35.6 miles) of beaches. A HCP is a statutory 

component of an incidental take permit application under section 10 of the ESA. The Volusia 

County HCP limits the potential for sea turtle-vehicle interactions through four basic 

mechanisms: (1) public access is limited to daylight hours, and public safety vehicles that 

operate at night must follow specific guidelines; (2) public driving is limited primarily to those 

areas where nest densities are lowest; (3) in those areas where public driving is permitted, all 

driving and parking must occur outside a marked Conservation Zone near the dune, where the 

majority of nests are typically deposited; and (4) all nests are conspicuously marked so they can 

be avoided. Mitigation measures to offset unavoidable take have included development and 

implementation of a beach lighting management plan and rehabilitation of stranded sea turtles. 
I-70

St. Johns County, Florida, also developed an HCP to address beach driving issues affecting sea 

turtles and received an incidental take permit in 2006. 

Efforts to Eradicate Exotic Plants on Nesting Beaches 

Numerous efforts have been undertaken in Florida to remove exotic plants, such as Australian 

pine trees (Casuarina equisetifolia) and Brazilian pepper trees (Schinus terebinthifolius), from 

sea turtle nesting beaches. For example, on Loggerhead Key, Dry Tortugas National Park, the 

National Park Service has eliminated Australian pines from the island in an effort to restore and 

enhance sea turtle nesting habitat. Similar efforts have been undertaken at St. Lucie State Park, 

Hobe Sound NWR, and the Archie Carr NWR, as well as others. In North and South Carolina, 

the Carolina Beach Vitex Task Force was established to document and eradicate beach vitex 

(Vitex rotundifolia) from loggerhead nesting beaches.

Efforts to Standardize and Improve Nesting Surveys and Hatchling Production 

Assessments 

Florida, Georgia, and the Carolinas have established sea turtle conservation guidelines in an 

attempt to standardize nesting surveys and hatchling production assessments. Annual training 

workshops also are conducted to reinforce standardized methods for marking and inventorying 

nests to measure hatching success. 

I.2. NERITIC ZONE

Managing threats to sea turtles in the water lags behind efforts on the beach due to limited access 

to turtles, lack of information on habitat use by different life history stages, and cost. Therefore, 

most efforts to preserve marine and estuarine habitats are regulatory in nature. 

Efforts to Reduce Bycatch in Commercial Fisheries 

Mortality resulting from commercial fisheries operations, both domestically and in international 

waters, ranks among the most significant threats to the species. A variety of gears is used in 

commercial fisheries, including gillnets, trawls, hook and line (e.g., longlines), seines, dredges, 

and various types of pots/traps. Among these, gillnets, longlines, and trawl gear collectively 

result in tens of thousands of loggerhead deaths annually throughout their range in the Atlantic 

Ocean and Gulf of Mexico (see for example, Lewison et al. 2004; NMFS 2002a, 2004b). 

Considerable effort has been expended since the 1980s to document and address these serious 

mortality factors. NMFS has implemented observer programs in many federally managed and 

some state managed fisheries to collect turtle bycatch data. The most effective observer 

programs have been implemented in the longline fishery, nearshore gillnet fisheries, and trawl 

fisheries operating in the U.S. territorial seas and EEZ. Along with academic partners, NMFS 

has been evaluating alternative methods of observing fisheries, especially those fisheries that 

employ small vessels, where it is impractical or unsafe to carry observers. NMFS has 

successfully deployed observers on alternative platform vessels and observed haulbacks or 

directly observed stationary nets to document turtle bycatch. Efforts are also underway to use 
I-71

acoustic technologies to visualize stationary gear in the water column and to determine whether 

turtles are present as bycatch (e.g., side scan sonar). 

Efforts to reduce bycatch and mortality of loggerheads in fishing operations have focused on 

several areas. NMFS, working with industry and other partners, has reduced bycatch by 

developing technological solutions to prevent capture or to allow turtles to escape without harm 

(e.g., TEDs), by implementing time and area closures to prevent interactions from occurring 

(e.g., prohibitions on gillnet fishing along the mid-Atlantic coast during the critical time of 

northward migration of loggerheads), and/or by modifying gear (e.g., requirements to reduce 

mesh size in the leaders of pound nets to prevent entanglement, circle hooks in the pelagic 

longline fishery). 

NMFS recently adopted one of the most significant conservation actions -- a coastwide strategy 

to reduce bycatch of sea turtles in state and Federal fisheries in the U.S. Atlantic and Gulf of 

Mexico. This approach will enable NMFS to look comprehensively at turtle bycatch in various 

fisheries on a gear-type basis. In other words, NMFS will evaluate turtle bycatch across gear 

types, such as gillnet or trawl, as opposed to a fishery-by-fishery basis, such as monkfish gillnet 

or flounder trawl. This will allow for a more comprehensive and ordered approach to address the 

most problematic gear and develop coastwide solutions for reducing bycatch inshore, nearshore, 

and offshore. 

Trawl Fisheries: The development and implementation of TEDs in the shrimp trawl fishery is 

arguably the most significant conservation accomplishment in the marine environment since 

loggerheads were listed under the ESA. In the southeast U.S. and Gulf of Mexico, TEDs have 

been mandatory in shrimp and flounder trawls for over a decade. NMFS has implemented 

various improvements in the design and function of TEDs to improve turtle exclusion and/or 

shrimp retention. Most notably, in 2003, NMFS implemented new requirements for TEDs in the 

shrimp trawl fishery to ensure that large loggerheads could escape through TED openings. An 

evaluation of turtle strandings by Epperly and Teas (2002) clearly demonstrated that approved 

TED openings were not large enough to exclude large loggerheads. Despite these 

improvements, TEDs are not required in all trawl fisheries, and significant loggerhead mortality 

still occurs in some trawl fisheries. In addition, enforcement of TED regulations is limited by 

available funding, and illegal or improperly installed TEDs are common in some areas. 

Gillnet Fisheries: Gillnets of various mesh sizes are used extensively to harvest fish in the 

Atlantic Ocean and Gulf of Mexico. Gillnets can be anchored or drifting, and are fished at 

varying depths and configurations depending on the target species. All size classes of 

loggerheads in coastal waters are prone to entanglement in gillnets, and, generally, the larger the 

mesh size the more likely that turtles will become entangled. State resource agencies and NMFS 

have been addressing this issue on several fronts. In the southeast U.S., gillnets are prohibited in 

the state waters of South Carolina, Georgia, Florida, and Texas and are restricted to fishing for 

pompano and mullet in saltwater areas of Louisiana. While these prohibitions were enacted 

primarily to recover fish stocks and prevent bycatch of various species in addition to turtles, they 

have contributed to loggerhead recovery. Reducing bycatch of loggerheads in the remaining 

state and federally regulated gillnet fisheries of the U.S. Atlantic and Gulf of Mexico has not 

been fully accomplished. NMFS has addressed the issue for several federally managed fisheries, 
I-72

such as the large-mesh gillnet fishery (primarily for monkfish) along the Atlantic coast, where 

gillnets larger than 8-inch stretched mesh are now regulated in North Carolina and Virginia 

through rolling closures timed to match the northward migration of loggerheads along the midAtlantic coast in late spring and early summer. The state of North Carolina, working with NMFS 

through the ESA section 10 process, has been making significant progress in reducing bycatch of 

loggerheads in gillnet fisheries operating in Pamlico Sound. The large mesh driftnet fishery for 

sharks off the Atlantic coast of Florida and Georgia remains a concern, despite observer 

requirements and the implementation of temporary emergency regulations when turtle bycatch 

has been documented. 

Longline Fisheries: Observer programs have documented significant bycatch of loggerheads in 

the U.S. longline fishery operating in the Atlantic Ocean and Gulf of Mexico. In recent years, 

NMFS has dedicated significant funding and effort to address this bycatch issue. In partnership 

with academia and industry, NMFS has funded and conducted field experiments in the northwest 

Atlantic Ocean to develop gear modifications that eliminate or significantly reduce loggerhead 

bycatch. The experiments found that using large circle hooks in combination with finfish bait, as 

opposed to using “J” hooks and squid bait, significantly reduce loggerhead bycatch. NMFS 

required the use of circle hooks fleet wide and circle hooks in combination with whole finfish 

bait in the Northeast Distant area (NMFS 2004a, 69 FR 40734). In addition, NMFS is 

conducting research on the sensory biology of loggerheads to examine if sight, smell, and sound 

may be used to reduce bycatch (Swimmer and Wang 2007). 

The incidental capture and mortality of loggerheads by international longline fleets operating in 

the North Atlantic Ocean and Mediterranean Sea is of great concern. NMFS is focusing 

attention to recognize and address the problem on a multi-lateral level. For example, NMFS is 

collaborating with foreign governments to conduct similar research to that undertaken in the U.S. 

fleet. The U.S. is also working through Regional Fisheries Management Organizations, such as 

the International Commission for the Conservation of Atlantic Tunas (ICCAT), to encourage 

member nations to adopt gear modifications (e.g., large circle hooks) that have been shown to 

significantly reduce loggerhead bycatch. 

Pound Net Fisheries: Pound nets are used in the mid-Atlantic and North Carolina to capture a 

variety of finfish. Loggerheads can become entangled in or impinged on the mesh leaders that 

funnel fish toward the pound, where turtles may also become entrapped. Entanglement in the 

large mesh leaders often leads to death, especially in areas of strong currents. NMFS has 

promulgated regulations restricting the use of pound net leaders in certain areas of the 

Chesapeake Bay and regulations to require a modified pound net leader to minimize loggerhead 

bycatch (NMFS 2006b, 71 FR 36024). 

Pot/Trap Fisheries: NMFS is working with industry to better understand the interaction of 

loggerheads with pot and trap fisheries along the mid-Atlantic and northeast U.S. coast. While a 

solution has not yet been identified, gear experts are focusing on developing a technical solution 

to reduce bycatch in pot/trap fisheries. NMFS has established a Sea Turtle Disentanglement 

Network to respond to reports of entangled turtles. 
I-73

Efforts to Reduce the Effects of Dredging

Dredging activities to deepen or widen navigation channels and harbors, or to provide sand for 

artificial beach nourishment activities, have been demonstrated to capture and kill loggerheads. 

Under the provisions of section 7 of the ESA, the COE has implemented monitoring and 

conservation actions to reduce or eliminate bycatch of turtles. Seasonal restrictions to prevent 

the use of hopper dredges in certain areas where turtles are abundant have been implemented 

through regulation in the southeast U.S. With few exceptions, deflector devices are required on 

hopper dredges at all times south of Virginia and in the Gulf of Mexico to help prevent turtles 

from being taken during hopper dredging activities and observers are also required to monitor 

whether turtles are being taken in certain times and areas, depending on turtle abundance. In 

certain areas and at certain times, turtles are captured by trawl and relocated out of dredging 

areas. 

Efforts to Conduct In-water Monitoring 

NMFS convened a workshop to evaluate methods for assessing abundance and trends in in-water 

populations using mark-recapture, capture-effort, and transect methodologies (Bjorndal and 

Bolten 2000). Workshop participants developed recommendations for selection of study 

populations, experimental design, and analysis. Trends in neritic foraging ground populations 

must be integrated over a large geographic area in order to forecast trends successfully in nesting 

populations (Bjorndal et al. 2005). 

SCDNR initiated a large-scale 4-year study in 2000 designed to document species diversity and 

provide an index of abundance of sea turtles in the coastal waters of South Carolina, Georgia, 

and northeast Florida (Maier et al. 2004). During spring and summer (May-August), sea turtles 

were captured using shrimp trawlers with large-mesh nets (8-inch stretch) from Georgetown, 

South Carolina, to St. Augustine, Florida. Sampling was conducted in waters ranging from 15 to 

40 feet in depth. This study has yielded valuable information on the species composition, life 

history, and habitat use of juvenile and adult loggerheads in the coastal waters of the southeast 

U.S. The sea turtle abundance index established during this study provides a baseline for 

assessing future population trends. Eaton et al. (2008) provide a comprehensive overview of 

historical and current research and monitoring projects concerning the occurrence, distribution, 

abundance, and representation of life stages of sea turtles in Florida waters. They identified 25 

active and 17 inactive in-water sea turtle research projects in Florida, with the majority taking 

place on the Atlantic coast. Studies are also underway in North Carolina waters to gather 

information on trends in abundance, survival estimates, sex ratios, health status, population 

structure, and behavior (Avens 2003; Bass et al. 2004; Braun-McNeill et al. 2007a, 2007b; 

Epperly et al. 2007; Stamper et al. 2005). In-water studies in Chesapeake Bay and Long Island 

Sound have also provided important information on habitat use and behavior of loggerheads in 

these habitats (Byles 1988, Morreale and Standora 1998, Mansfield 2006).

In addition to in-water monitoring for population trend analyses, significant efforts have been 

made to better understand loggerhead movements. Using satellite telemetry, a number of studies 

have been completed on juvenile and adult loggerheads in the Northwest Atlantic that have 

provided information on neritic and oceanic foraging habitat use, seasonal migrations, and male 
I-74

and female reproductive migrations (Dodd and Byles 2003, Hawkes et al. 2007, HopkinsMurphy et al. 2003, McClellan and Read 2007, Schroeder et al. 2003). 

Efforts to Coordinate a Stranding Network 

Since 1980, NMFS, in close cooperation and with coastal states in the Atlantic and Gulf of 

Mexico, has coordinated a regional effort to document sea turtle mortality. The Sea Turtle 

Stranding and Salvage Network (STSSN) documents dead or injured sea turtles along the U.S. 

coast from Maine to Texas (Shaver and Teas 1999). Currently, 26 of the 44 statistical zones 

receive systematic surveys. Each stranding is identified to species, measured, and assessed for 

obvious wounds, injuries, or abnormalities. Data are recorded on standardized forms and 

submitted to the STSSN coordinator at NMFS. Stranding summaries are available on the NMFS 

Southeast Fisheries Science Center web page [http://www.sefsc.noaa.gov/seaturtleSTSSN.jsp]. 

Analysis of stranding data has been important in assessing regulations designed to protect sea 

turtles from fishery-related mortality. For example, a recent analysis of sea turtle stranding data 

suggested that the minimum TED openings were too small to allow large juvenile and adult 

loggerheads to escape from shrimp nets (Epperly and Teas 2002), which prompted NMFS to 

revise TED regulations to include larger minimum TED openings. 

Efforts to Rehabilitate and Release Stranded Turtles 

There are approximately 25 rehabilitation facilities along the Atlantic and Gulf of Mexico coasts 

that take in sick or injured sea turtles on a regular basis and release healthy turtles back into the 

wild. Several hundred live loggerheads are brought to these facilities through the STSSN 

annually. 

Efforts to Reduce the Effects of Military Activities 

Consultation under section 7 of the ESA is the primary avenue for evaluating potential adverse 

effects of military activities on loggerheads, and for developing alternatives and solutions to 

minimize these effects. NMFS and FWS consult with the Department of Defense on military 

activities, including training exercises near nesting beaches, shipshock testing of submarines in 

migration and foraging habitats, and bombing training exercises in resting, migration, and 

foraging habitats. Efforts to minimize the effects of these activities have focused on adjusting 

timing to minimize encounters with loggerheads and/or adjusting locations of activities to reduce 

overlap with sea turtle habitats. 

Efforts to Reduce the Effects of Oil and Gas Activities 

Oil and gas exploration and production activities have been documented to adversely affect 

loggerheads, either through direct effects (e.g., explosive removal of aging oil platforms) or 

indirectly through degradation of marine habitats (e.g., oil spills). MMS, the Federal agency 

responsible for regulating oil and gas activities, regularly consults with NMFS (through ESA 

section 7) on the effects of these actions on sea turtles. The most significant conservation 

accomplishment in this arena is the implementation of required monitoring programs prior to all 
I-75

oil and gas platform removals to reduce the likelihood that turtles will be in the vicinity when the 

detonation occurs. 

Efforts to Reduce Vessel Strikes 

The seriousness of the threat caused by vessel strikes to loggerheads in the Atlantic and Gulf of 

Mexico cannot be overstated. This growing problem is particularly difficult to address. In some 

cases, NMFS, through section 7 of the ESA, has worked with the U.S. Coast Guard (USCG) in 

an attempt to reduce the probability of vessel strikes during permitted offshore race events. Most 

races now require a protected species watch program including observers to monitor for sea 

turtles in the area. Continuous aerial surveys are usually required 1 hour prior to and throughout 

the event or practice sessions. If sea turtles are located within the designated race area, the event 

is postponed. However, most vessel strikes occur outside of these venues and the growing 

number of licensed vessels, especially inshore and nearshore, exacerbates the conflict. Slow 

speed zones, implemented for manatee protection, may provide some benefits to turtles, although 

this has not been quantified. 

Efforts to Conduct Health Assessments 

Researchers have conducted health assessments of loggerheads in several locations in the 

southeast U.S. Jacobson et al. (unpublished data) present, in an online database 

[http://accstr.ufl.edu/blood_chem.htm], plasma biochemical and hematocrit reference intervals 

for sea turtles in Florida. Maier et al. (2004) conducted general physical exams and assessed the 

blood chemistry of 946 loggerheads captured in standardized trawls from 2000-2003 in the 

coastal waters of South Carolina, Georgia, and northeast Florida. Stamper et al. (2005) assessed 

epibiota and blood chemistry of resident and migratory loggerheads captured in pound nets in 

North Carolina. Researchers and managers have also evaluated epizootic events such as the 

mass stranding of loggerheads with clinical signs of a neurological disorder in south Florida 

during 2000 (Jacobson et al. 2006) and the stranding events in Northeast Florida and Georgia in 

2004 and 2006 (Norton et al. in press). 

In addition, researchers have collected baseline information on pesticide and heavy metal 

contamination in loggerhead populations at several locations throughout the southeast U.S. Until 

recently, the majority of studies have focused on contaminant levels in turtle eggs (Pugh and 

Becker 2001). However, several ongoing studies are examining pesticide and heavy metal 

contamination in benthic juveniles and adults. For example, SCDNR has documented mercury 

contamination in loggerheads caught during standardized sea turtle abundance surveys in coastal 

waters of South Carolina, Georgia, and north Florida (Day et al. 2005). Keller et al. (2004) 

documented polychlorinated biphenyl and organochlorine pesticide levels in juvenile 

loggerheads in coastal North Carolina. Further research suggested that organochlorine pesticide 

exposure may suppress immune function (Keller et al. 2006). Results from these research efforts 

are critical for assessing current and future impacts of environmental contamination on 

loggerhead populations. 
I-76

I.3. OCEANIC ZONE

Efforts to Reduce Bycatch in Commercial Fisheries 

Driftnet Fisheries: In 1991, the United Nations banned the use of large-scale high seas driftnets 

over 2.5 km long. Prior to the U.N. driftnet ban, these nets were of enormous proportions 

reaching lengths of 40 to 60 km. The U.S. supported this ban and continues to support efforts to 

ensure compliance. NMFS and the international conservation community are actively working 

with ICCAT to adopt mandatory measures to minimize loggerhead bycatch in swordfish and 

tuna fisheries operating in the Atlantic and Mediterranean. 

Longline Fisheries: For a discussion of longline fisheries, refer to the Neritic section. 

Efforts to Reduce Marine Debris 

The MARPOL Convention (International Convention for the Prevention of Pollution from Ships, 

1973, as modified by the Protocol of 1978) is the main international convention that addresses 

prevention of pollution (including oil, chemicals, harmful substances in packaged form, sewage, 

and garbage) of the marine environment by ships from operational or accidental causes.

I.4. OTHER

Efforts to Increase Public Education and Awareness 

Public Turtle Walks - guided, interpretive sea turtle nesting-beach tours guided by statepermitted organizations. The purpose of turtle walks is to provide the public with opportunities 

to see a nesting loggerhead and to learn about the biology of sea turtles and about threats to their 

survival. On its website, FFWCC has guidelines for Florida turtle walks 

[http://myfwc.com/seaturtle/Guidelines/MarineTurtleGuidelines.htm (see Section 7 -- 

Educational Activities)] and contact information for permitted organizations that conduct turtle 

walks [http://myfwc.com/seaturtle/Education/Sea_Turtle_Watches_List.htm]. 

Websites - links to numerous websites with sea turtle information for the general public are listed 

at seaturtle.org [http://www.seaturtle.org/links]. 

Sea Grant Teacher Training Program - a teaching exercise to instruct children (K-12) about 

loggerhead demographics and mortality has been developed and made available at national 

marine educators training sessions and on the VIMS Sea Grant Website “The Bridge” 

[http://www.vims.edu/bridge]. 

Efforts to Improve Communication and Access to Information 

CTURTLE - a listserv discussion network for sea turtle biology and conservation managed by the 

ACCSTR [http://accstr.ufl.edu/cturtle.html]. 
I-77

Marine Turtle Newsletter - a quarterly publication that is distributed free of charge 

[http://www.seaturtle.org/mtn]. The Marine Turtle Newsletter aims to provide a forum for 

exchange of information about all aspects of marine turtle biology and conservation, and to alert 

interested people to particular threats to marine turtles. 

International Sea Turtle Society - an organization that convenes annual symposia to promote the 

exchange of information that advances the global knowledge of sea turtle biology and 

conservation [http://www.seaturtle.org/ists].

Chelonian Conservation and Biology - an international journal of turtle and tortoise research that 

publishes papers on the conservation and biology of sea turtles 

[http://www.chelonian.org/crf-publications/ccb]. 

Seaturtle.org - a website that provides a wealth of sea turtle information, including links to 

numerous additional websites with sea turtle information [http://www.seaturtle.org/links]. 

Sea Turtle Online Bibliography - a website managed by the ACCSTR that includes references on 

all aspects of sea turtle biology, conservation, and management [http://accstr.ufl.edu/biblio.html]. 

Citations are from recognized bibliographic sources as well as “grey literature.” 

Bibliography of the Loggerhead Sea Turtle - a bibliography developed and maintained by C. 

Kenneth Dodd, Jr. [http://www.flmnh.ufl.edu/natsci/herpetology/caretta/Caretta.htm]. 

Online Publications - full-text documents, including the Proceedings from the Annual Symposia 

on Sea Turtle Biology and Conservation, are available on the NMFS Office of Protected 

Resources website [http://www.nmfs.noaa.gov/pr/species/turtles/publications.htm]. 

Efforts to Address Research and Management Needs 

Significant advances in our understanding of loggerhead biology and ecology have occurred 

since the publication of the 1991 recovery plan for Atlantic loggerheads. These advances have 

greatly improved conservation and management strategies. Advances in our knowledge span 

topics including anatomy and physiology, age to maturity and survival, incubation environment 

and egg development, temperature-dependent sex determination, sex ratios, nest site selection 

and nesting activity/patterns, hatchling emergence and orientation, reproductive strategies, 

population structure, foraging ecology and habitat use, movement, and principal threats. 

Advances in these various fields are detailed in other sources (e.g., Bolten and Witherington 

2003, Lutz and Musick 1997, Lutz et al. 2003). 

Efforts to Address International Needs 

International Agreements: Several international agreements have been developed that provide 

legal protection for sea turtles. The following are the main instruments, and Hykle (2002) has 

reviewed their advantages and disadvantages. 
I-78

 Convention on Biological Diversity (190 Parties; in force since 1993) - an international treaty 

that focuses on “the conservation of biological diversity, the sustainable use of its 

components and the fair and equitable sharing of the benefits arising out of the utilization of 

genetic resources . . .” 

 Convention on the Conservation of European Wildlife and Natural Habitats (45 European 

and African States and the European Union; in force since 1982; also known as the Bern 

Convention) - designed “to conserve wild flora and fauna and their natural habitats, 

especially those species and habitats whose conservation requires the cooperation of several 

States, and to promote such co-operation.” 

 Convention on the Conservation of Migratory Species of Wild Animals (101 member states 

as of January 2007; also known as the Bonn Convention) - an international treaty that focuses 

on the conservation of migratory species and their habitats. 

 Convention on International Trade in Endangered Species of Wild Fauna and Flora (169 

Parties; in force since 1975) - designed to regulate international trade in a wide range of wild 

animals and plants. 

 Convention for the Protection and Development of the Marine Environment of the Wider 

Caribbean Region (21 Parties; in force since 1986; also known as the Cartagena Convention) 

with its Protocol Concerning Specially Protected Areas and Wildlife (SPAW) (12 Parties; in 

force since 2000) - designed to encourage Parties “to take all appropriate measures to protect 

and preserve rare or fragile ecosystems, as well as the habitat of depleted, threatened or 

endangered species, in the Convention area.” The SPAW Protocol provides specifically for 

protection of marine turtles. 

 Inter-American Convention for the Protection and Conservation of Sea Turtles (13 Parties; in 

force since 2001) - an independent, regional treaty that focuses on the protection of marine 

turtles and their habitats. The treaty is open to all nations in North, Central, and South 

America, and the Caribbean. 

 Protocol Concerning Specially Protected Areas and Biological Diversity in the 

Mediterranean (in force since 1999, under the Barcelona Convention for the Protection of the 

Mediterranean Sea against Pollution) - has general provisions to protect the Mediterranean 

marine environment, including sea turtles and their habitats. 

Technology Transfer: The U.S. has undertaken significant efforts to transfer sea turtle bycatch 

reduction technologies to foreign nations using similar gear and fishing in areas where sea turtles 

are present. Most notable is the TED technology transfer program, administered by NMFS. 

Workshops and hands-on training onboard commercial vessels have been conducted throughout 

the world where shrimp fishing occurs. More recently, efforts have also focused on reducing 

bycatch and mortality of loggerheads in global longline fisheries. These efforts include 

information dissemination and training on the use of circle hooks, release protocols, and 

dehookers. 
I-79

Capacity Building: Federal and state biologists, as well as biologists from academia, the private 

sector, and the conservation community, have undertaken efforts to build management, research, 

and enforcement capacity in other nations within the range of the Atlantic loggerhead. 

Workshops and manuals on topics such as operating stranding and salvage networks, conducting 

necropsies, establishing nesting beach surveys, and conducting enforcement operations have 

been developed and conducted in the region. These opportunities provide excellent venues for 

galvanizing support and capacity for conservation actions both within and outside foreign 

governments. A good example of capacity building was a 1999 regional meeting titled “Marine 

Turtle Conservation in the Wider Caribbean Region - A Dialogue for Effective Regional 

Management” held in Santo Domingo, Dominican Republic. The purpose of the meeting was to 

develop a better understanding of regional sea turtle management needs and foster greater 

cooperation and collaboration toward sea turtle recovery among Wider Caribbean governments 

(Eckert and Abreu Grobois 2001). 

Improved Communication: Improved communication is critical for addressing international 

conservation and management needs. See the section on Efforts to Improve Communication and 

Access to Information under I.4 Other for descriptions of currently available resources for 

improved international communication. 
I-80
II-1

PART II. RECOVERY STRATEGY

This Recovery Strategy section presents and justifies the recommended recovery program for the 

Northwest Atlantic population of the loggerhead based on the information presented in the 

Background section. This section provides a concise summary of the species’ status and the 

recommended recovery approach. 

A. OVERVIEW

Loggerheads have a complex life history that spans terrestrial, neritic, and oceanic habitats (see 

Part I). In addition, loggerheads have slow growth rates and are long lived with late sexual 

maturity – traits requiring high annual juvenile survival. These life history complexities, both 

geographic and demographic, provide both constraints and opportunities for recovery that 

necessitate a diverse and comprehensive recovery strategy. 

The life history and basic biology of the loggerhead were reviewed in Part I. As pointed out in a 

number of sections, there are several significant data deficiencies with respect to our knowledge 

of loggerhead basic biology, demography, distributions, and movements. To comprehensively 

conserve and recover loggerhead turtles in the Atlantic, these data gaps need to be addressed. 

From the beginning of standardized surveys in 1989 until 1998, the Peninsular Florida Recovery 

Unit, the largest nesting assemblage in the Atlantic by an order of magnitude, had a significant 

increase in the number of nests. However, from 1998 through 2007, Witherington et al. (2009) 

reported a decrease of 39.9% in annual nest counts. In 2008, a slight increase in nest counts was 

reported, but this did not alter the declining trend (Figure 5). This dramatic change in status for 

the Peninsular Florida Recovery Unit is a serious concern and requires immediate attention to 

determine the cause(s) of this change and the actions needed to reverse it. The Northern 

Recovery Unit has been declining at a rate of 1.3% annually since standardized surveys were 

implemented in 1983. The Northern Gulf of Mexico Recovery Unit has shown a significant 

declining trend of 6.8% annually since index nesting beach surveys were initiated in 1997. No 

statistical trends in nesting abundance can be determined for the Dry Tortugas Recovery Unit 

because of the lack of long-term data. Similarly, statistically valid analyses of long-term nesting 

trends for the entire Greater Caribbean Recovery Unit are not available because there are few 

long-term standardized nesting surveys representative of the region. Additionally, changing 

survey effort at monitored beaches and scattered and low-level nesting by loggerheads at many 

locations currently precludes comprehensive analyses. 

A quantitative analysis of threats to Atlantic loggerhead populations is presented in Appendix 1. 

Bycatch in commercial fisheries (particularly longline, bottom trawl, and gillnet fisheries) is the 

most significant anthropogenic threat to the conservation of Atlantic loggerhead populations. A 

comprehensive set of recovery actions has been developed to address the problem of bycatch. 

Other significant threats to Atlantic loggerhead populations include light pollution on nesting 

beaches; coastal development, which leads to coastal armoring and other erosion control 

measures that impact nesting habitat; and nest predation. Recovery actions that address these 

threats are identified later in this section. 
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In Part II of the Recovery Plan, we present the geographic and genetic basis for designating 

recovery units for the Northwest Atlantic loggerhead population. Recovery goals and objectives 

are discussed and demographic and threats-based recovery criteria are identified. In Part III, we 

present an implementation schedule for recovery. 

B. RECOVERY UNITS

Recovery units are subunits of the listed species that are geographically or otherwise identifiable 

and essential to the recovery of the species. Recovery units are individually necessary to 

conserve genetic robustness, demographic robustness, important life history stages, or some 

other feature necessary for long-term sustainability of the species. Establishing recovery units is 

a useful management tool for species occurring across wide ranges with multiple populations, 

varying ecological pressures, or different threats in different parts of their range. Recovery units 

are primarily delineated on a biological basis; however, boundaries may be modified to reflect 

differing management regimes. Recovery units are not necessarily self-sustaining viable units on 

their own, but instead need to be collectively recovered to ensure recovery of the entire listed 

entity. 

The loggerhead sea turtle is listed worldwide at the species level. Therefore, the entire species is 

the listed entity. However, in this recovery plan, we have identified recovery units for the 

Northwest Atlantic loggerhead population. At this time, the Northwest Atlantic loggerhead 

population is only a “potential” distinct population segment (DPS) and cannot be considered for 

delisting separately from the listed entity (i.e., the entire species) until it meets both the recovery 

criteria for each recovery unit and has completed a formal DPS evaluation and designation, 

which would involve a proposed rulemaking, public review and comment, and a final 

rulemaking. (In 1996, FWS and NMFS published a joint policy defining the phrase “distinct 

population segment” (FWS and NMFS 1996, 61 FR 4722). Three elements are considered in a 

decision regarding the listing, delisting, or reclassification of a DPS as endangered or threatened 

under the ESA: discreteness of the population segment in relation to the remainder of the species, 

significance of the population segment to the species, and conservation status. In early 2008, 

NMFS established a Loggerhead Biological Review Team to assess the loggerhead population 

structure globally to determine whether DPSs exist and, if so, to assess the status of each DPS. 

The Loggerhead Biological Review Team will review and synthesize information, render expert 

opinion, and prepare a written report (status review) by mid-2009. With this in mind, we have 

identified recovery units for the Northwest Atlantic loggerhead population as follows. 

Five nesting subpopulations of loggerheads in the Northwest Atlantic have been previously 

identified based on mtDNA haplotype frequencies (Encalada et al. 1998, Pearce 2001). 

However, recent increases in sample sizes and more complete sampling of rookeries along the 

Atlantic coast of Florida (i.e., Canaveral National Seashore (n=263), Archie Carr NWR (n=351), 

Juno Beach beaches (n=97), and Broward County beaches (n=48)) now suggest that there is 

continuous spatial variation for each of the two primary haplotypes (Figure 9; ACCSTR, 

unpublished data). Analyses using these new data indicate that there is no genetic difference 

between loggerheads nesting on adjacent beaches along the Florida Peninsula (north to south: 

Volusia County beaches, Canaveral National Seashore, Archie Carr NWR, Juno Beach beaches, 

Broward County beaches, and Dry Tortugas). This lack of genetic structure makes it difficult to 
II-3

designate specific boundaries for the subpopulations based on genetic differences alone. 

Therefore, we used a combination of geographic distribution of nesting densities, geographic 

separation, and geopolitical boundaries, in addition to genetic differences, to reassess the 

designation of subpopulations within the U.S. to identify recovery units for use in this recovery 

plan. 

0

0.1

0.2

0.3

0.4

0.5

0.6

0.7

0.8

0.9

1

900 1100 1300 1500 1700 1900

km South of Cape Hatteras, NC

Proportion

Figure 9. The frequency of haplotypes CC-A1 (open circles) and CC-A2 (open squares) are 

plotted for each of the seven nesting locations (north to south: NRU, Volusia County beaches, 

Canaveral National Seashore, Archie Carr NWR, Juno Beach beaches, Broward County beaches, 

and Dry Tortugas). Haplotypes CC-A1 and CC-A2 are the most frequent haplotypes, and 

combined vary from 88 to 100% for each nesting beach (ACCSTR, unpublished data). 

Our reassessment involved examining loggerhead nesting densities along the U.S. Atlantic and 

Gulf coasts to define peaks and gaps in nesting. We qualitatively identified five nesting peaks 

based on both nesting density and geographic separation (Figure 10). The five nesting peaks are: 

1) Cape Romain, South Carolina; 2) southeast Florida (Brevard County through Palm Beach 

County); 3) Dry Tortugas, Florida; 4) Sarasota County, Florida; and 5) St. Joseph Peninsula 

(Gulf County), Florida. In addition to being geographically separated, nesting females from each 

of these five areas are genetically distinct based on mtDNA haplotype frequencies (when the 

neighboring nesting beaches from Brevard County through Palm Beach County are combined), 

with the exception of females nesting at southeast Florida, which are indistinguishable from 

those at Sarasota County (southwest Florida) (Encalada et al. 1998; Pearce 2001; ACCSTR, 

unpublished data). Therefore, we designated four recovery units within the U.S. loggerhead 
II-4

nesting range based on a combination of geographic distribution of nesting densities and 

geographic separation in addition to genetic differences. The boundaries of these four recovery 

units were delineated based on geographic isolation and geopolitical boundaries (Figure 11). 

0

50

100

150

200

250

300

350

400

450

500

0 500 1000 1500 2000 2500 3000 3500 4000 4500 5000

km from Chesapeake Bay

Nests/km

Cape Romain, SC

Southeast Florida 

(Cape Canaveral-Juno Beach)

Dry Tortugas, FL

Southwest Florida

Florida Panhandle

Figure 10. Mean loggerhead nesting densities from southern Virginia to the U.S.-Mexico border 

(1999-2003). 
II-5

Figure 11. Location of the four identified recovery units in the U.S. (NRU = Northern Recovery 

Unit, PFRU = Peninsular Florida Recovery Unit, DTRU = Dry Tortugas Recovery Unit, 

NGMRU = Northern Gulf of Mexico Recovery Unit). 

The first four recovery units represent nesting assemblages in the southeast U.S. The fifth 

recovery unit is composed of all nesting assemblages of loggerheads within the Greater 

Caribbean, outside the U.S. 

Northern Recovery Unit: The Northern Recovery Unit is defined as loggerheads originating 

from nesting beaches from the Florida-Georgia border through southern Virginia (the northern 

extent of the nesting range). Because we could not precisely define the southern boundary based 

on genetics, we selected the Florida-Georgia border as the southern boundary of this recovery 

unit. 

Peninsular Florida Recovery Unit: The Peninsular Florida Recovery Unit is defined as 

loggerheads originating from nesting beaches from the Florida-Georgia border through Pinellas 

County on the west coast of Florida, excluding the islands west of Key West, Florida. Pinellas 

County, Florida, was selected as the northern Gulf coast boundary of this recovery unit because 

the Big Bend area between Pinellas and Franklin counties is largely composed of salt marsh that 

separates this recovery unit from the Northern Gulf of Mexico Recovery Unit. 

RECOVERY UNIT 

NRU 

PFRU 

DTRU 

NGMRU 
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Dry Tortugas Recovery Unit: The Dry Tortugas Recovery Unit is defined as loggerheads 

originating from nesting beaches throughout the islands located west of Key West, Florida, 

because these islands are geographically separated from other recovery units. 

Northern Gulf of Mexico Recovery Unit: The Northern Gulf of Mexico Recovery Unit is 

defined as loggerheads originating from nesting beaches from Franklin County on the northwest 

Gulf coast of Florida through Texas (the western extent of U.S. nesting range). Franklin County, 

Florida, was selected as the eastern boundary of this recovery unit because the Big Bend area 

between Franklin and Pinellas counties is largely composed of salt marsh that separates this 

recovery unit from the Peninsular Florida Recovery Unit. The Texas-Mexico border was chosen 

as the western boundary of this recovery unit. 

Greater Caribbean Recovery Unit: The Greater Caribbean Recovery Unit is composed of 

loggerheads originating from all other nesting assemblages within the Greater Caribbean 

(Mexico through French Guiana, The Bahamas, Lesser Antilles, and Greater Antilles). 

C. RECOVERY GOAL

The goal of this revised recovery plan is to ensure that each recovery unit meets its Recovery 

Criteria alleviating threats to the species so that protections under the ESA are no longer 

necessary. 

D. RECOVERY OBJECTIVES

The Recovery Goal can be subdivided into discrete component objectives that, collectively, 

describe the conditions necessary for achieving the Recovery Goal. It is appropriate to identify 

Recovery Objectives in terms of demographic parameters, reduction or elimination of threats to 

the species (the five listing factors), and any other particular vulnerability or biological needs 

inherent to the species. The objectives of this recovery plan are to: 

1. Ensure that the number of nests in each recovery unit is increasing and that this increase 

corresponds to an increase in the number of nesting females. 

2. Ensure the in-water abundance of juveniles in both neritic and oceanic habitats is increasing 

and is increasing at a greater rate than strandings of similar age classes. 

3. Manage sufficient nesting beach habitat to ensure successful nesting. 

4. Manage sufficient feeding, migratory, and internesting marine habitats to ensure successful 

growth and reproduction. 

5. Eliminate legal harvest. 

6. Implement scientifically based nest management plans. 

7. Minimize nest predation. 

8. Recognize and respond to mass/unusual mortality or disease events appropriately. 

9. Develop and implement local, state, Federal, and international legislation to ensure longterm protection of loggerheads and their terrestrial and marine habitats. 

10. Minimize bycatch in domestic and international commercial and artisanal fisheries. 

11. Minimize trophic changes from fishery harvest and habitat alteration. 

12. Minimize marine debris ingestion and entanglement. 

13. Minimize vessel strike mortality. 
II-7

E. RECOVERY CRITERIA

Section 4(f) of the ESA directs the Secretaries of the Department of the Interior and the 

Department of Commerce to develop and implement recovery plans. These plans must contain, 

to the maximum extent practicable, objective, measurable Recovery Criteria which, when met, 

would result in a determination that the species be removed from the List of Endangered and 

Threatened Wildlife. Recovery Criteria can be viewed as targets, or values, by which progress 

toward achievement of Recovery Objectives can be measured. Recovery Criteria may include 

such things as population numbers and sizes, management or elimination of threats by specific 

mechanisms, and specific habitat conditions. As a result, there is a need to frame Recovery 

Criteria in terms of both population parameters (Demographic Recovery Criteria, Section E.1.) 

and the five listing factors (Listing Factor Recovery Criteria, Section E.2.). The nesting beach 

Demographic Recovery Criteria (E.1.1) are specific to recovery units. The remaining Criteria 

cannot be delineated by recovery unit because individuals in the recovery units mix in the marine 

environment; therefore, these Criteria are applicable to all recovery units. Recovery criteria must 

be met for all recovery units. 

E.1. DEMOGRAPHIC RECOVERY CRITERIA

The Demographic Criteria evaluate trends and numbers of nests and nesting females, trends in 

abundance on foraging grounds, and trends in strandings. In developing the Demographic 

Criteria for nests and nesting females, pre-listing nesting population data were not used as a 

baseline either because they were not available or because uncertainties existed with data 

collection methodologies. However, post-listing nesting population data, which were available 

and sufficient to establish a baseline, were used to establish Demographic Criteria. The 

Demographic Criteria for nests and nesting females were based on a time frame of one 

generation for U.S. loggerheads -- defined as 50 years – selected as a biologically meaningful 

time period over which to assess recovery. One generation is estimated as age to maturity (34 

years) plus one half of reproductive life span (12.5 years based on Little Cumberland Island, 

Georgia, tag return data showing 25-year returns) (Pianka 1974, Dahlen et al. 2000). The 

resulting value (46.5 years) was rounded to 50 years to account for imprecision in the age to 

maturity estimate and a likely underestimate of reproductive lifespan (from tag loss and 

anthropogenic mortality). To be considered for delisting, each recovery unit will have recovered 

to a viable level (see footnotes) and each recovery unit will have increased for at least one 

generation. The rate of increase used for each recovery unit was dependent upon the level of 

vulnerability of each recovery unit. The minimum statistical level of detection (based on annual 

variability in nest counts over a generation time of 50 years) of 1% per year was used for the 

least vulnerable recovery unit (Peninsular Florida). A higher rate of increase of 3% per year1

was used for the most vulnerable recovery units (Dry Tortugas and Northern Gulf of Mexico). A 

rate of increase of 2% per year was used for a moderately vulnerable recovery unit (Northern). 

Sufficient data do not exist to develop detailed, stochastic life-history models for Northwest 

Atlantic loggerheads. Therefore, the Demographic Criteria for nests and nesting females were 

assessed using diffusion approximation analysis (Holmes 2001, 2004). This method was used 

because it can be applied to the sort of nesting counts that are available for sea turtle populations. 

This approach allowed quantitative population viability analysis based on a time series of nest 
II-8

counts to estimate the probability of crossing extinction thresholds. This method was used to 

examine the population viability of the Northern and Peninsular Florida Recovery Units. This 

method was not applied to the Dry Tortugas and Northern Gulf of Mexico Recovery Units due to 

a limited time series of nest counts for both of these recovery units. 

A fundamental problem with restricting population trend analyses to nesting beach surveys is 

that they are unlikely to reflect changes in the entire population. This is because of the long time 

lag to maturity and the relatively small proportion of females that are reproducing for the first 

time on a nesting beach, at least in populations with high adult survival rates. A decrease in 

oceanic juvenile or neritic juvenile survival rates may be masked by the natural variability in 

nesting female numbers and the slow response of adult abundance to changes in recruitment to 

the adult population (Chaloupka and Limpus 2001). In light of this, two additional Demographic 

Criteria were developed to ensure a more representative measure of population status was 

achieved. The first of these additional Demographic Criteria assesses trends in abundance on 

foraging grounds, and the other assesses age-specific trends in strandings relative to age-specific 

trends in abundance on foraging grounds. These latter two demographic criteria are not specific 

to recovery units because progeny from the various recovery units mix on the foraging grounds. 

As a result, in-water trends were not developed for the individual recovery units. 

1. Number of Nests and Number of Nesting Females

a. Northern Recovery Unit (a 2% annual rate of increase was used to develop the 

Demographic Criteria because this recovery unit is between 1,000 and 10,000 nests per 

year, currently declining, and moderately vulnerable to extinction from stochastic events) 

(1) There is statistical confidence (95%) that the annual rate of increase over a 

generation time of 50 years is 2% or greater resulting in a total annual number of 

nests of 14,000 or greater for this recovery unit (approximate distribution of nests is 

NC=14% [2,000], SC=66% [9,200], and GA=20% [2,800])2

. 

(2) This increase in number of nests must be a result of corresponding increases in 

number of nesting females (estimated from nests, clutch frequency, and remigration 

interval). 

b. Peninsular Florida Recovery Unit (a 1% minimal detectable annual rate of increase was 

used to develop the demographic criteria because this recovery unit is greater than 10,000 

nests per year and determined least vulnerable to extinction from stochastic events) 

(1) There is statistical confidence (95%) that the annual rate of increase over a 

generation time of 50 years is statistically detectable (1%) resulting in a total annual 

number of nests of 106,100 or greater for this recovery unit3

. 

(2) This increase in number of nests must be a result of corresponding increases in 

number of nesting females (estimated from nests, clutch frequency, and remigration 

interval). 
II-9

c. Dry Tortugas Recovery Unit (a 3% annual rate of increase was used to develop the 

demographic criteria because this recovery unit is less than 1,000 nests per year and 

highly vulnerable to extinction from stochastic events) 

(1) There is statistical confidence (95%) that the annual rate of increase over a 

generation time of 50 years is 3% or greater resulting in a total annual number of 

nests of 1,100 or greater for this recovery unit4. 

(2) This increase in number of nests must be a result of corresponding increases in 

number of nesting females (estimated from nests, clutch frequency, and remigration 

interval). 

d. Northern Gulf of Mexico Recovery Unit (a 3% annual rate of increase was used to 

develop the demographic criteria because this recovery unit is less than 1,000 nests per 

year and highly vulnerable to extinction from stochastic events) 

(1) There is statistical confidence (95%) that the annual rate of increase over a 

generation time of 50 years is 3% or greater resulting in a total annual number of 

nests of 4,000 or greater for this recovery unit (approximate distribution of nests 

(2002-2007) is FL= 92% [3,700] and AL=8% [300])5

. 

(2) This increase in number of nests must be a result of corresponding increases in 

number of nesting females (estimated from nests, clutch frequency, and remigration 

interval). 

e. Greater Caribbean Recovery Unit 

(1) The total annual number of nests at a minimum of three nesting assemblages, each 

averaging greater than 100 nests annually (e.g., Yucatán, Mexico; Cay Sal Bank, 

The Bahamas), has increased over a generation time of 50 years. 

(2) This increase in number of nests must be a result of corresponding increases in 

number of nesting females (estimated from nests, clutch frequency, and remigration 

interval). 

2. Trends in Abundance on Foraging Grounds

A network of index in-water sites, both oceanic and neritic, distributed across the foraging 

range is established and monitoring is implemented to measure abundance. There is 

statistical confidence (95%) that a composite estimate of relative abundance from these sites 

is increasing for at least one generation. 
II-10

3. Trends in Strandings Relative to In-water Abundance

Stranding trends are not increasing at a rate greater than the trends in in-water relative 

abundance for similar age classes for at least one generation. 
II-11

Footnotes to Explain Methods Used to Determine Demographic Criteria: 

1 A statistically significant rate of annual increase was approximately 3% over a 9-year period (1989-

1998) at a set of index beaches within the PFRU (Witherington et al. 2009). 

2 Power analysis indicates that 2% exceeds the minimum detectable annual increase (see Table 5(b), 1983-

2008; CV=0.28), alpha=0.05, beta=0.10, duration in years=50, two-tailed significance test, exponential 

rate of change (TRENDS software per Gerrodette 1993). The target of 14,037 nests per year (rounded to 

14,000) is based on a 2% annual increase over 50 years from a baseline of 5,215 nests per year (1989-

2008 average total nests per year for the NRU). Diffusion approximation analysis indicates that this rate 

of increase and resulting number of nests would result in the NRU having a less than 1% chance of 

extinction over 100 years. The recovery criterion rate of increase shall be calculated based on annual nest 

counts from nesting beaches that meet standardized daily survey criteria, see Table 5. 

3 Power analysis indicates that the minimum detectable annual increase is approximately 1% (see Table 

6(b), 1989-2008; CV=0.22), alpha=0.05, beta=0.10, duration in years=50, two-tailed significance test, 

exponential rate of change (TRENDS software per Gerrodette 1993). The target of 106,100 nests per year 

(no rounding needed) is based on a 1% annual increase over 50 years from a baseline of 64,513 nests per 

year (1989-2007 average total nests per year for the PFRU). Diffusion approximation analysis indicates 

that this rate of increase and resulting number of nests would result in the PFRU having a less than 1% 

chance of extinction over 100 years. The recovery criterion rate of increase shall be calculated based on 

standardized annual nest counts from index nesting beaches, see Table 6. 

4 For recovery units that do not exceed 1,000 nests annually, the maximum possible rate of increase (3%, 

see Footnote 1) observed on Florida index beaches was adopted to minimize the risk of extinction due to 

stochastic events. Power analysis indicates that 3% exceeds the minimum detectable annual increase (see 

Table 7(b), 1995-2004; CV=0.21), alpha=0.05, beta=0.10, duration in years=50, two-tailed significance 

test, exponential rate of change (TRENDS software per Gerrodette 1993). The average number of nests 

per year for 1995-2004 is 246 and a 3% annual increase results in a total of 1,074 nests (rounded to 1,100) 

for this recovery unit. The recovery criterion rate of increase is to be calculated based on annual nest 

counts from index nesting beaches, see Table 7. Diffusion approximation analysis was not calculated due 

to a limited data series. 

5 For recovery units that do not exceed 1,000 nests annually, the maximum possible rate of increase (3%, 

see Footnote 1) observed on Florida index beaches was adopted to minimize the risk of extinction due to 

stochastic events. Power analysis indicates that 3% exceeds the minimum detectable annual increase (see 

Table 8(b), 1997-2008; CV=0.28), alpha=0.05, beta=0.10, duration in years=50, two-tailed significance 

test, exponential rate of change (TRENDS software per Gerrodette 1993). The average number of nests 

per year for 1995-2007 is 906 and a 3% annual increase results in a total of 3,973 nests (rounded to 4,000) 

for this recovery unit. The recovery criterion rate of increase is to be calculated based on annual nest 

counts from index nesting beaches, see Table 8. Diffusion approximation analysis was not calculated due 

to a limited data series. 
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Table 5. Summary of data used to calculate Northern Recovery Unit nest trends and the 

minimum detectable trend for recovery criteria. 

5(a) Beaches used in the analysis. Standardized daily surveys were conducted on all beaches 

from 1983 to 2008. 

 Beach State 

Survey Length 

(km) 

Hammocks Beach SP NC 6.4 

Onslow Beach NC 11.3 

Bald Head Island NC 14.5 

Cape Island SC 13.0 

Edisto Beach SP SC 2.3 

Edisto Beach SC 7.6 

Fripp Island SC 4.8 

Pritchard's Island SC 4.0 

Wassaw Island GA 10.7 

Blackbeard Island GA 11.0 

Little Cumberland Island GA 4.7 
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5(b) Loggerhead annual nest totals from selected beaches (see Table 5(a)) used to calculate 

population trend and coefficient of variation (CV) for the power analysis. 

Year Loggerhead Nests 

1983 1,509 

1984 2,247 

1985 1,778 

1986 2,430 

1987 1,380 

1988 1,729 

1989 1,421 

1990 2,466 

1991 2,127 

1992 1,844 

1993 931 

1994 2,207 

1995 1,484 

1996 1,969 

1997 1,100 

1998 1,812 

1999 2,173 

2000 1,475 

2001 1,242 

2002 1,543 

2003 1,998 

2004 549 

2005 1,766 

2006 1,940 

2007 1,153 

2008 1,854 
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5(c) Loggerhead annual nest totals for all surveyed beaches used to determine population size 

and the baseline annual number of nests. 

Year* North Carolina Georgia South Carolina 

Northern Recovery Unit 

Nest Total 

1989 457 717 2,623 3,797 

1990 806 1,091 4,155 6,052 

1991 931 1,213 3,542 5,686 

1992 729 1,057 3,944 5,730 

1993 485 475 2,093 3,053 

1994 1,021 1,380 5,280 7,681 

1995 662 1,036 2,905 4,603 

1996 776 1,116 3,807 5,699 

1997 568 816 2,238 3,622 

1998 847 1,069 4,335 6,251 

1999 1,140 1,406 5,050 7,596 

2000 757 1,073 3,387 5,217 

2001 659 851 2,808 4,318 

2002 694 1,034 2,660 4,388 

2003 863 1,504 3,728 6,095 

2004 344 367 1,093 1,804 

2005 647 1,200 4,233 6,080 

2006 794 1,396 3,679 5,869 

2007 532 689 2,558 3,779 

2008 832 1,644 4,500 6,976 

 14,544 21,134 68,618 Average=5,215 

* Complete surveys were available for a limited sample of years. 
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Table 6. Summary of data used to calculate Peninsular Florida Recovery Unit nest trends and 

the minimum detectable trend for recovery criteria. 

6(a) Core index nesting beaches within the Peninsular Florida Recovery Unit. Surveys on these 

beaches have been established to have consistent and uniform effort among years, have been 

monitored since 1989, and are suitable for the assessment of temporal trends in nesting. 

Beach County 

Survey 

Length 

(km) Notes 

Fort Clinch SP Nassau 3.68 

Amelia Island Nassau 20.80 

Little Talbot Island SP Duval 8.00 

Atlantic-Jax Beach Duval 12.80 

Guana River SP St. Johns 6.72 

Ft. Matanzas NM St. Johns 7.68 

Canaveral NS Volusia/Brevard 38.00 

Merritt Island NWR Brevard 9.92 

Canaveral AF Station Brevard 21.00 

Patrick AF Base Brevard 7.04 

South Brevard County Brevard 40.50 

Sebastian Inlet SRA Brevard/Indian River 4.80 

Wabasso Beach Indian River 8.00 

Ft. Pierce Inlet SRA St. Lucie 9.60 

Hutchinson Island St. Lucie/Martin 36.90 

St. Lucie Inlet SP Martin 4.30 

Hobe Sound NWR Martin 5.60 

Jupiter Island Martin 12.00 

Juno Beach Palm Beach 8.40 excludes zones J&K (10&11) 

Boca Raton Palm Beach 8.00 

J.D. MacArthur SP Palm Beach 2.88 

John U. Lloyd SRA Broward 3.36 excludes zone E (5) 

Miami Beaches Dade 20.00 

Sanibel Island Lee 5.60 

Wiggins Pass SRA Collier 6.40 

Keewaydin Island Collier 6.88 
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6(b) Loggerhead annual nest totals from selected beaches (=core index nesting beaches, see 

Table 6(a)) used to calculate population trend and coefficient of variation for the power analysis. 

Year Loggerhead Nests 

1989 39,083 

1990 50,266 

1991 52,802 

1992 47,567 

1993 41,808 

1994 51,168 

1995 57,843 

1996 52,811 

1997 43,156 

1998 59,918 

1999 56,471 

2000 56,277 

2001 45,941 

2002 38,101 

2003 40,726 

2004 29,547 

2005 34,310 

2006 31,329 

2007 28,073 

2008 38,643 
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6(c) Loggerhead annual nest totals for all surveyed beaches used to determine population size 

and the baseline annual number of nests. Survey effort was not constant among years. 

Year Loggerhead Nests 

1989 49,297 

1990 66,452 

1991 68,318 

1992 64,574 

1993 55,200 

1994 70,887 

1995 79,546 

1996 75,528 

1997 63,914 

1998 84,560 

1999 79,487 

2000 83,036 

2001 68,610 

2002 62,190 

2003 62,408 

2004 46,259 

2005 51,831 

2006 49,141 

2007 44,512 

 Average=64,513 
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Table 7. Summary of data used to calculate the Dry Tortugas Recovery Unit nest trends and the 

minimum detectable trend for recovery criteria. 

7(a) Beaches used in the analysis. Surveys on these beaches have consistent and uniform effort 

among years, have been monitored since 1995, and are suitable for the assessment of temporal 

trends in nesting. Beach length is reported for 2004 (the latest year during which all islands were 

surveyed). 

Beach County 

Survey Length 

(km) 

East Key Monroe 0.6 

Loggerhead Key Monroe 2.4 

Miscellaneous Keys Monroe 3.2 

7(b) Loggerhead annual nest totals from selected beaches (see Table 7(a)) used to calculate 

population trend and coefficient of variation for the power analysis and to determine population 

size and the baseline annual number of nests. Survey effort was not constant among years. 

Year Loggerhead Nests 

1995 340 

1996 249 

1997 258 

1998 249 

1999 292 

2000 242 

2001 213 

2002 * 

2003 208 

2004 159 

2005 * 

2006 * 

2007 * 

 Average=246 

* Incomplete surveys were conducted during these years; therefore, an annual nest total could 

not be calculated. 
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Table 8. Summary of data used to calculate the Northern Gulf of Mexico Recovery Unit nest 

trends and the minimum detectable trend for recovery criteria. 

8(a) Beaches used in the analysis. Surveys on these beaches have consistent and uniform effort 

between years, have been monitored since 1997, and are suitable for the assessment of temporal 

trends in nesting. 

Beach County 

Survey Length 

(km) 

Santa Rosa Island Walton 19.3 

Panama City Bay 28.2 

St. Joseph Peninsula SP Gulf 14.5 

8(b) Loggerhead annual nest totals from selected beaches (see Table 8(a)) used to calculate 

population trend and coefficient of variation for the power analysis. 

Year Loggerhead Nests 

1997 166 

1998 149 

1999 235 

2000 181 

2001 143 

2002 149 

2003 95 

2004 114 

2005 120 

2006 111 

2007 99 

2008 143 
II-20

8(c) Loggerhead annual nest totals for all surveyed beaches used to determine population size 

and the baseline annual number of nests. Survey effort was not constant among years. 

Year Loggerhead Nests 

1995 928 

1996 891 

1997 1,133 

1998 1,187 

1999 1,285 

2000 1,118 

2001 857 

2002 754 * 

2003 894 * 

2004 805 * 

2005 657 * 

2006 668 * 

2007 605 * 

 Average=906 

* Years with nest counts made for Alabama beaches. All other years are represented by Florida 

only. 
II-21

E.2. LISTING FACTOR RECOVERY CRITERIA

1. Present or Threatened Destruction, Modification, or Curtailment of a Species Habitat 

or Range

a. Terrestrial 

(1) Beach armoring, shoreline stabilization structures, and all other barriers to nesting 

are categorized and inventoried for areas under U.S. jurisdiction. A peerreviewed strategy is developed and implemented to ensure that the percentage of 

nesting beach free of barriers to nesting is stable or increasing relative to baseline 

levels. 

(2) Beach sand placement projects conducted in areas under U.S. jurisdiction are in 

compliance with state and FWS criteria and are conducted in a manner that 

accommodates loggerhead needs and does not degrade or eliminate nesting 

habitat. 

(3) At least 1,581 km of loggerhead nesting beaches and adjacent uplands (current 

amount as identified in Appendix 4) under U.S. jurisdiction are maintained within 

conservation lands in public (Federal, state, or local) or private (NGO and private 

conservation lands) ownership that are managed in a manner compatible with sea 

turtle nesting. 

(4) A peer-reviewed model is developed that describes the effects of sea level rise on 

loggerhead nesting beaches, and steps have been taken to mitigate such effects. 

(5) Nesting beaches outside U.S. jurisdiction are managed for compatibility with 

loggerhead nesting. 

b. Marine (estuarine, neritic, and oceanic) 

A peer-reviewed, comprehensive strategy is developed and implemented to identify, 

prioritize, and protect marine habitats (e.g., feeding, migratory, inter-nesting) 

important to loggerheads. 

2. Overutilization for Commercial, Recreational, Scientific, or Educational Purposes

a. Legal harvest (both commercial and subsistence) in the Caribbean, Atlantic, and 

Mediterranean is identified and quantified. A strategy is developed and implemented 

to eliminate legal harvest through international agreements. 

b. A scientifically based nest management plan outlining strategies for protecting nests 

(under U.S. jurisdiction) from natural and manmade impacts is developed and 

implemented. 

3. Disease or Predation

a. Ecologically sound predator control programs are implemented to ensure that the 

annual rate of mammalian predation on nests (under U.S. jurisdiction) is 10% or 

below within each recovery unit based on standardized surveys1. 

b. A peer-reviewed strategy is developed to recognize, respond to, and investigate 

mass/unusual mortality or disease events. 

4. Inadequacy of Existing Regulatory Mechanisms

a. Light management plans, which meet minimum standards identified in the Florida 

Model Lighting Ordinance (Florida Administrative Code 62B-55), are developed, 
II-22

fully implemented, and effectively enforced on nesting beaches under U.S. 

jurisdiction. Annual percentage of total nests with hatchlings disoriented or 

misoriented by artificial lighting does not exceed 10% based on standardized 

surveys

2

. 

b. Specific and comprehensive Federal legislation is developed, promulgated, 

implemented, and enforced to ensure long-term (including post-delisting) protection 

of loggerheads and their terrestrial and marine habitats, including protection from 

fishery interactions. 

c. State and local legislation is developed and/or maintained, promulgated, 

implemented, and enforced to ensure long-term (including post-delisting) protection 

of loggerheads and their terrestrial and marine habitats, including protection from 

fishery interactions. 

d. Foreign nations with significant loggerhead foraging or migratory habitat have 

implemented national legislation and have acceded to international and multi-lateral 

agreements to ensure long-term protection of loggerheads and their habitats. Nations 

that have important foraging or migratory habitat include Canada, Mexico, Cuba, The 

Bahamas, Turks and Caicos Islands, Nicaragua, Panama, Colombia, Spain, Portugal, 

Morocco, and Cape Verde Islands. 

e. Nations that conduct activities affecting loggerheads in foraging or migratory habitats 

in the North Atlantic Basin and the western Mediterranean have implemented 

national legislation and have acceded to international and multi-lateral agreements to 

ensure long-term protection of loggerheads and their habitats throughout the high seas 

and in foreign EEZs. 

5. Other Natural or Manmade Factors Affecting Its Continued Existence

a. A peer-reviewed strategy is developed and fully implemented to minimize fishery 

interactions and mortality for each domestic commercial fishing gear type that has 

loggerhead bycatch. 

b. A peer-reviewed strategy is developed and fully implemented in cooperation with 

relevant nations to minimize fishery interactions and mortality of loggerheads in 

foreign EEZs and on the high seas. 

c. A peer-reviewed strategy is developed and fully implemented to quantify, monitor, 

and minimize effects of trophic changes on loggerheads (e.g., diet, growth rate, 

fecundity) from fishery harvests and habitat alterations. 

d. A peer-reviewed strategy is developed and fully implemented to quantify, monitor, 

and minimize the effects of marine debris ingestion and entanglement in U.S. 

territorial waters, the U.S. EEZ, foreign EEZs, and the high seas. 

e. A peer-reviewed strategy is developed and fully implemented to minimize vessel 

strike mortality in U.S. territorial waters and the U.S. EEZ. 

Footnotes for Listing Factor Criteria: 

1 A 10% rate has been achievable at beaches where predator control efforts have been made and where 

predation rates were formerly greater than 80% (Merritt Island NWR and Canaveral National Seashore; 

Witherington, unpublished data). 

2 A 10% rate, excluding outliers, has been measured at developed beaches where light management efforts 

have been made (Witherington et al. 1996). 
II-23

F. RECOVERY PROGRAM

This section describes the recovery actions necessary to achieve the goal and objectives of the 

plan and the monitoring necessary to track the status of the species and the effectiveness of 

recovery actions. This section includes a Recovery Action Outline, which lists the recovery 

actions without the accompanying descriptions. This section also includes the Recovery Action 

Narrative, which describes the actions necessary to achieve full recovery of the species. 

F.1. RECOVERY ACTION OUTLINE

1. Determine demographic parameters, refine population genetic structure, and monitor 

distribution, abundance, and trends. 

11. Monitor and refine population genetic structure. 

111. Refine geographic boundaries of recovery units. 

112. Monitor population genetic structure on foraging grounds. 

113. Develop new techniques for refining population genetic structure. 

12. Monitor nesting abundance and trends by recovery unit. 

121. Maintain and/or adopt standardized criteria for on-the-ground nesting surveys. 

122. Continue to monitor trends in nesting and non-nesting emergences on 

index/standardized beaches. 

123. Incorporate index/standardized nesting survey protocols on additional beaches 

to fully represent recovery units. 

124. Monitor annual nesting and non-nesting emergences on non-index/nonstandardized beaches as extensively as possible. 

125. Conduct periodic censuses of recovery units to obtain total nest counts and 

geographic distribution of nesting. 

13. Monitor in-water population abundance and trends. 

131. Establish a network of index in-water study sites across the range of all habitats 

(neritic and oceanic) and develop sampling protocols to estimate indices of 

abundance and determine trends. 

132. Evaluate, improve, maintain, and expand in-water surveys at index sites to 

estimate indices of abundance and determine trends. 

133. Develop sampling protocols for conducting large-scale in-water surveys to 

estimate indices of abundance and determine trends. 

134. Implement large-scale in-water surveys to estimate indices of abundance and 

determine trends. 

14. Determine geographic distribution patterns of in-water populations. 

141. Develop and maintain a comprehensive GIS database of distribution and 

abundance. 

142. Determine migratory pathways for all life history stages. 

15. Determine and monitor female reproductive output by recovery unit. 

151. Adopt standardized hatchling production assessment criteria. 

152. Implement annual assessments of hatchling production using standardized 

criteria. 

153. Determine and monitor clutch frequency. 

154. Determine and monitor remigration interval. 
II-24

155. Determine female reproductive lifespan. 

16. Determine and monitor demographic parameters at index in-water sites. 

161. Develop sampling and data collection protocols for demographic parameters. 

1611. Refine and develop techniques for determining sex ratios. 

1612. Refine and develop aging techniques. 

1613. Determine somatic growth rates and evaluate sources of variation. 

1614. Determine age-specific survival probabilities. 

1615. Determine age at sexual maturity for females. 

1616. Determine age at sexual maturity, reproductive frequency, and 

reproductive lifespan for males. 

162. Implement sampling and data collection protocols at index in-water sites. 

17. Maintain and improve the Sea Turtle Stranding and Salvage Network. 

171. Maintain the Sea Turtle Stranding and Salvage Network. 

172. Implement improvements to the Sea Turtle Stranding and Salvage Network. 

18. Maintain and enhance centralized administration and coordination of tagging programs. 

2. Assess, monitor, and protect habitats. 

21. Ensure beach sand placement projects are conducted in a manner that accommodates 

loggerhead needs and does not degrade or eliminate nesting habitat. 

211. Conduct periodic reviews of existing state and FWS criteria for sand placement 

projects and modify as necessary. 

212. Minimize the effects of beach and dune sand placement projects on 

loggerheads. 

2121. Ensure all beach sand placement projects are in compliance with state 

and FWS criteria. 

2122. Establish protocols for removing sand that is determined to have not 

met sand suitability requirements. 

2123. Evaluate the effects of dredging of nearshore ebb tidal shoals on 

adjacent nesting habitat. 

213. Ensure sand compaction levels following beach sand placement do not hinder 

sea turtle nesting or hatchling productivity. 

2131. Evaluate sand compaction levels on native beaches for all recovery 

units to determine thresholds for tilling. 

2132. Investigate alternative methods for monitoring sand compaction. 

2133. Implement tilling as a means of softening compacted beaches. 

214. Implement escarpment leveling and/or profile adjustment on constructed 

beaches as needed. 

215. Ensure sediment grain size, composition, sorting, and color are compatible with 

native beaches. 

216. Ensure sediment sources do not contain contaminants that impact sea turtle 

nests. 

2161. Conduct research on contaminant levels of sediment sources and their 

effects on loggerheads. 

2162. Evaluate and revise, if necessary, current Federal guidelines for 

contaminant levels of sediment sources to ensure compatibility with 

loggerhead development. 
II-25

2163. Conduct statistically valid sampling of borrow sediments for 

contaminants (pre- and post-construction) and ensure sediment sources 

do not exceed existing Federal guidelines for contaminant levels. 

217. Design and evaluate beach construction profiles to more closely mimic natural 

beaches. 

218. Re-establish natural dune structure and native vegetation during sand placement 

projects. 

219. Monitor and assess the effects of beach and dune sand placement projects on 

loggerhead nesting. 

2191. Monitor suitability of post-construction beaches for nesting. 

2192. Develop and maintain an inventory of beach and dune sand placement 

projects and periodically assess the cumulative effects of these projects 

on loggerhead nesting and hatchling production. 

22. Minimize degradation of nesting habitat from barriers to nesting. 

221. Categorize and inventory all beach armoring, shoreline stabilization structures, 

and all other barriers to nesting to establish baseline levels and develop a GIS. 

222. Ensure that the percentage of nesting beach free of any barriers to nesting is 

stable or increasing relative to baseline levels determined in 221. 

2221. Convene an expert panel to develop a strategy to strengthen and guide 

regulations to minimize the effects of coastal armoring on loggerheads 

and to ensure that the percentage of nesting beach free of any barriers to 

nesting is stable or increasing relative to baseline levels determined in 

221. 

2222. Modify existing regulations or promulgate new regulations to 

implement the strategy developed in 2221. 

2223. Ensure regulations governing placement and design of new coastal 

buildings and infrastructure eliminate any future need for coastal 

armoring. 

2224. Require removal of failed or ineffective erosion control structures. 

2225. Prohibit recreational equipment on nesting beaches at night. 

2226. Evaluate the effectiveness of dune crossovers for protecting dunes and 

strengthen existing regulations or promulgate new regulations to 

minimize effects from dune crossovers. 

2227. Evaluate the effectiveness of sand fences for building beaches and 

strengthen existing regulations or promulgate new regulations for sand 

fence construction. 

2228. Ensure regulations pertaining to barriers to nesting are enforced. 

23. Maintain and acquire nesting beaches and adjacent uplands to be held in public trust. 

231. Maintain at least the current length and quality of protected nesting beach. 

232. Acquire additional parcels of nesting beach and adjacent uplands or otherwise 

ensure long-term protection. 

2321. Acquire additional beachfront and upland properties (undeveloped and 

developed) within the boundaries of the Archie Carr National Wildlife 

Refuge, Florida. 
II-26

2322. Acquire additional beachfront and upland properties (undeveloped and 

developed) on Hutchinson Island, Florida, and develop a plan to ensure 

long-term protection. 

2323. Acquire additional beachfront and upland properties (undeveloped and 

developed) within the nesting range of the Peninsular Florida Recovery 

Unit and develop a plan to ensure long-term protection. 

2324. Acquire additional beachfront and upland properties (undeveloped and 

developed) within the nesting range of the Northern Recovery Unit and 

develop a plan to ensure long-term protection. 

2325. Acquire additional beachfront and upland properties (undeveloped and 

developed) within the nesting range of the Northern Gulf of Mexico 

Recovery Unit and develop a plan to ensure long-term protection. 

2326. Acquire storm-damaged nesting beachfront and upland properties on 

loggerhead nesting beaches. 

24. Minimize the effects of climate change on loggerhead habitats. 

241. Develop a model that describes the effects of sea level rise on loggerhead 

nesting beaches. 

242. Implement measures and develop agreements to reduce atmospheric greenhouse 

gasses. 

25. Minimize effects of light pollution on hatchlings and nesting females. 

251. Develop, fully implement, and effectively enforce light management plans to 

address direct and indirect (e.g., sky glow, uplighting) artificial lighting on 

nesting beaches. 

2511. Implement and enforce lighting ordinances on lands under local 

government jurisdiction. 

2512. Implement and enforce lighting management plans on all lands under 

state and Federal jurisdiction. 

252. Evaluate the extent of hatchling disorientation on nesting beaches based on 

standardized surveys. 

253. Prosecute individuals or entities responsible for nesting female or hatchling 

disorientation under the Endangered Species Act or appropriate state laws. 

26. Conduct other activities to improve the quality of nesting habitat. 

261. Encourage the manual removal of manmade beach debris through regular 

coastal cleanup programs. 

262. Remove exotic vegetation harmful to loggerheads on and adjacent to nesting 

beaches. 

27. Inventory and protect neritic habitats used by loggerheads. 

271. Assess, categorize, and map neritic habitats used by loggerheads. 

272. Assess human activities and their effects on neritic habitats used by 

loggerheads. 

2721. Assess the effects of bottom trawl and dredge fisheries on neritic 

habitats used by loggerheads. 

2722. Assess the effects of eutrophication on neritic habitats used by 

loggerheads. 

2723. Assess the effects of water management on neritic habitats used by 

loggerheads. 
II-27

2724. Assess the effects of oil and gas production activities on neritic habitats 

used by loggerheads. 

2725. Assess the effects of channel dredging on neritic habitats used by 

loggerheads. 

2726. Assess the effects of salvage operations on neritic habitats used by 

loggerheads. 

2727. Assess the effects of other human activities on neritic habitats used by 

loggerheads. 

273. Develop and implement a strategy to protect and monitor neritic habitats used 

by loggerheads. 

28. Inventory and protect oceanic habitats used by loggerheads. 

281. Assess, categorize, and map oceanic habitats used by loggerheads. 

282. Assess human activities and their effects on oceanic habitats used by 

loggerheads. 

2821. Assess the effects of oil and gas activities on oceanic habitats used by 

loggerheads. 

2822. Assess the effects of marine debris on oceanic habitats used by 

loggerheads. 

2823. Assess the effects of other pollutants on oceanic habitats used by 

loggerheads. 

283. Develop and implement a strategy to protect and monitor oceanic habitats used 

by loggerheads. 

29. Develop and maintain a comprehensive GIS database of neritic and oceanic habitats 

(used by loggerheads) and human activities that impact these habitats. 

3. Prevent overutilization for commercial, scientific, or educational purposes. 

31. Work with foreign nations to quantify and eliminate commercial and subsistence 

harvest. 

32. Educate local communities in foreign nations on the benefits of sea turtle ecotourism as 

an alternative to harvest. 

33. Develop and implement guidelines for public turtle walks that minimize disturbance to 

loggerheads. 

34. Minimize take of wild turtles for captive display. 

4. Assess and manage disease and predation. 

41. Reduce nest predation. 

411. Reduce the annual rate of mammalian predation to at or below 10% of nests 

within each recovery unit using ecologically sound predator control programs. 

412. Control fire ants on and adjacent to loggerhead nesting beaches. 

42. Develop diagnostic health assessment protocols and establish baselines for wild 

populations. 

421. Develop a condition index to allow rapid evaluation of physiological status. 

422. Develop protocols for collecting, handling, and analyzing baseline blood 

chemistry parameters from wild loggerheads. 

423. Establish representative baseline blood chemistry parameters by sex, size class, 

season, and location. 

424. Establish representative baseline toxicological parameters by sex, size class, 

season, and habitat. 
II-28

425. Establish representative baseline levels of parasitic infection in wild turtles. 

426. Establish representative baseline levels of bacterial, fungal, and viral infections 

in wild turtles. 

43. Develop and implement a program to monitor loggerhead health at representative index 

in-water sites and index/standardized nesting beaches. 

44. Evaluate the effects of harmful algal blooms on loggerhead health. 

45. Investigate the lethal and sublethal role of contaminants. 

46. Develop and implement protocols for handling turtles to limit transfer of disease. 

47. Ensure the use of best practices in the rehabilitation, captive holding, transportation, 

and release of loggerheads. 

471. Develop and/or finalize protocols for the proper care and maintenance of 

loggerheads held in captivity. 

472. Develop protocols for transport and release of captive loggerheads. 

473. Develop a manual for the assessment and treatment of loggerhead diseases and 

injuries. 

474. Develop and maintain a list of veterinarians qualified to diagnose and treat 

health problems in loggerheads. 

48. Develop a strategy to recognize, respond to, and investigate mass strandings, disease 

episodes, or unusual mortality events. 

5. Ensure adequacy of regulatory mechanisms. 

51. Develop, implement, and enforce regulatory mechanisms to protect loggerheads and 

their habitats in the U.S. 

511. Develop and implement Federal regulations to ensure long-term protection of 

loggerheads and their habitats post-delisting. 

512. Ensure full and active enforcement of Federal regulations designed to protect 

loggerheads. 

513. Develop and/or maintain, implement, and enforce state and local legislation to 

protect loggerheads and their habitats. 

52. Ensure adequacy of regulatory mechanisms to protect loggerheads and their habitats in 

foreign nations. 

521. Assist foreign countries in developing national regulations to protect 

loggerheads and their habitats. 

522. Assist foreign countries with enforcement of national regulations to protect 

loggerheads. 

53. Encourage development of and participation in multi-national agreements that facilitate 

conservation of loggerheads and their habitats. 

531. Encourage non-signatory nations of the western hemisphere to accede to the 

Inter-American Convention for the Conservation and Protection of Marine 

Turtles. 

532. Encourage non-signatory nations to accede to the Convention for the Protection 

and Development of the Marine Environment of the Wider Caribbean Region 

(Cartegena Convention), specifically the Protocol Concerning Specially 

Protected Areas and Wildlife in the Wider Caribbean (SPAW Protocol). 

533. Ensure the U.S. becomes a party to the United Nations Convention on the Law 

of the Sea and the Convention on Migratory Species. 
II-29

6. Minimize other causes of disturbance, harassment, injury, and mortality. 

61. Minimize impacts to sea turtles on nesting beaches. 

611. Eliminate nest management techniques that are not scientifically based. 

6111. Evaluate the effects of nest management activities on nest productivity, 

hatchling fitness, and sex ratios and develop scientifically based 

standardized protocols for nest management. 

6112. Implement scientifically based standardized protocols for nest 

management. 

6113. Use the least manipulative method to protect nests. 

6114. Discontinue the use of hatcheries as a nest management technique. 

612. Minimize and control vehicular traffic on nesting beaches. 

6121. Prohibit nighttime driving on beaches during the loggerhead nesting 

season. 

6122. Ensure that the linear kilometers of nesting beach where vehicular 

traffic is permitted does not increase above 2006 levels. 

6123. Manage daytime driving to minimize impacts to loggerheads. 

613. Strengthen existing regulations or promulgate new regulations to manage 

mechanical beach cleaning on nesting beaches. 

614. Minimize harassment of nesting females and hatchlings. 

6141. Evaluate the extent and effects of harassment of nesting females and 

hatchlings and develop management recommendations. 

6142. Conduct public education campaigns to minimize harassment of nesting 

females and hatchlings. 

6143. Increase the number of interpretive turtle walks to meet demand and 

minimize overall disturbance to nesting females and hatchlings. 

6144. Enforce laws to minimize harassment of nesting females and 

hatchlings. 

615. Develop and enforce guidelines for special events on the beach to minimize 

impacts on nesting females, nests, and hatchlings. 

616. Minimize the impacts of military activities on nesting females, nests, and 

hatchlings. 

617. Ensure oil spills affecting nesting beaches do not impact nesting females, nests, 

and hatchlings. 

6171. Conduct a risk management assessment of oil spill effects on nesting 

beaches. 

6172. Ensure that oil spill response plans exist and adequately protect all 

nesting beaches. 

618. Minimize the impacts of coastal construction activities on nesting females, 

nests, and hatchlings. 

6181. Conduct all non-emergency coastal construction activities outside the 

main portion of the nesting season to eliminate impacts on nesting 

females, nests, and hatchlings. 

6182. Strengthen existing regulations or promulgate new regulations to 

minimize impacts from emergency construction activities during the 

nesting season on nesting females, nests, and hatchlings. 
II-30

6183. Develop and implement ordinances to eliminate the effects of 

stormwater outfalls and swimming pool drainage on nesting females, 

nests, and hatchlings. 

619. Ensure that law enforcement activities eliminate poaching of eggs and nesting 

females. 

62. Minimize loggerhead bycatch in domestic fisheries using a gear-based strategy. 

621. Minimize loggerhead bycatch in domestic commercial gillnet fisheries. 

6211. Describe and characterize domestic commercial gillnet fisheries. 

6212. Integrate information gathered in 6211 with turtle distribution data 

(linked to actions 141 and 29). 

6213. Implement observer programs to determine bycatch levels and identify 

key characteristics of domestic commercial gillnet fisheries that affect 

bycatch levels. 

6214. Implement measures to minimize bycatch in large mesh gillnet 

fisheries. 

6215. Implement measures to minimize bycatch in other gillnet fisheries as 

appropriate. 

622. Minimize loggerhead bycatch in domestic shrimp trawl fisheries. 

6221. Describe and characterize domestic commercial and recreational shrimp 

trawl fisheries. 

6222. Integrate information gathered in 6221 with turtle distribution data 

(linked to actions 141 and 29). 

6223. Increase observer coverage to a statistically robust level to adequately 

monitor bycatch levels in the domestic commercial shrimp fishery and 

modify TED regulations if necessary. 

6224. Promulgate regulations to require TEDs in all trynets in the domestic 

commercial shrimp fishery. 

6225. Continue efforts to educate domestic commercial shrimp fishers on the 

proper installation and use of larger-opening TEDs. 

6226. Investigate the physiological effects of multiple captures and exclusions 

of loggerheads in domestic commercial shrimp trawls equipped with 

TEDs. 

6227. Monitor and reduce effort in the domestic commercial shrimp trawl 

fishery to minimize loggerhead bycatch. 

6228. Investigate turtle exclusion rates for soft TEDs under field conditions 

using videography. 

6229. Implement statistically valid observer programs to determine bycatch 

levels in domestic commercial skimmer trawl fisheries and require 

TEDs if necessary. 

623. Minimize loggerhead bycatch in domestic commercial non-shrimp trawl 

fisheries. 

6231. Describe and characterize domestic commercial non-shrimp trawl 

fisheries. 

6232. Integrate information gathered in 6231 with turtle distribution data 

(linked to actions 141 and 29). 
II-31

6233. Implement statistically valid observer programs to determine bycatch 

levels in domestic commercial non-shrimp trawl fisheries. 

6234. Implement seasonal large-opening TED regulations for domestic 

commercial non-shrimp trawl fisheries operating from Cape Hatteras, 

North Carolina, north to Cape Cod, Massachusetts. 

6235. Promulgate regulations to require TEDs in domestic commercial flynet 

trawl fisheries. 

6236. Promulgate regulations to require large-opening TEDs in all domestic 

commercial non-shrimp trawl fisheries south of Cape Hatteras, North 

Carolina. 

624. Minimize loggerhead bycatch in domestic commercial pelagic and demersal 

longline fisheries. 

6241. Describe and characterize domestic commercial pelagic and demersal 

longline fisheries. 

6242. Integrate information gathered in 6241 with turtle distribution data 

(linked to actions 141 and 29). 

6243. Maintain and/or increase observer coverage to a statistically robust 

level to adequately monitor bycatch levels in domestic commercial 

pelagic and demersal longline fisheries. 

6244. Continue to conduct focused experiments on domestic commercial 

longline gear and fishing practices to minimize loggerhead interactions 

and secondarily to minimize post-interaction mortality. 

6245. Investigate the effectiveness of time-area closures to minimize 

loggerhead interactions in domestic commercial pelagic and demersal 

longline fisheries. 

6246. Promulgate regulations to implement proven measures that minimize 

loggerhead interactions with commercial pelagic and demersal longline 

fisheries. 

6247. Develop and implement effective approaches to enforcing longline 

regulations in U.S. territorial waters, the U.S. EEZ, and on the high 

seas. 

6248. Promote the use of safe handling practices and careful release tools in 

domestic commercial pelagic and demersal longline fisheries. 

625. Minimize loggerhead bycatch in domestic commercial and recreational pot/trap 

fisheries. 

6251. Describe and characterize pot/trap fisheries. 

6252. Integrate information gathered in 6251 with turtle distribution data 

(linked to actions 141 and 29). 

6253. Develop gear modifications to prevent entanglement of loggerheads in 

pot/trap lines. 

6254. Promulgate regulations to incorporate modifications to whelk pot 

bridles to prevent loggerhead entanglement. 

6255. Promulgate appropriate regulations to reduce incidental capture of 

loggerheads in pots/traps. 

6256. Require identification on pot/trap gear. 

626. Minimize loggerhead bycatch in domestic commercial dredge fisheries. 
II-32

6261. Describe and characterize domestic commercial dredge fisheries. 

6262. Integrate information gathered in 6261 with turtle distribution data 

(linked to actions 141 and 29). 

6263. Evaluate the effectiveness of gear modifications developed to reduce 

loggerhead bycatch in the domestic commercial scallop dredge fishery. 

6264. Promulgate regulations that reduce loggerhead bycatch and mortality in 

the domestic commercial scallop dredge fishery. 

6265. Investigate bycatch and mortality of loggerheads in commercial whelk 

dredge fisheries. 

6266. Investigate bycatch and mortality of loggerheads in commercial surf 

clam dredge fisheries. 

627. Minimize loggerhead bycatch in other domestic commercial fisheries. 

6271. Describe and characterize other domestic commercial fisheries. 

6272. Integrate information gathered in 6271 with turtle distribution data 

(linked to actions 141 and 29). 

6273. Investigate bycatch and mortality of loggerheads in other domestic 

commercial fisheries and implement bycatch reduction measures as 

necessary. 

6274. Ensure that no increase in effort over 2003 levels occurs in the 

Sargassum fishery to minimize loggerhead bycatch. 

628. Enforce domestic commercial fishery regulations to minimize loggerhead 

bycatch. 

63. Minimize loggerhead bycatch in foreign commercial fisheries. 

631. Disseminate results of bycatch reduction experiments and transfer demonstrated 

bycatch reduction technologies to foreign nations. 

632. Encourage and assist foreign nations in collecting data on loggerhead bycatch 

via observer programs for commercial fisheries where bycatch levels are 

undocumented. 

633. Encourage and assist foreign nations to develop, implement, and enforce fishery 

regulations to minimize loggerhead bycatch in commercial pelagic longline 

fisheries. 

634. Encourage and assist foreign nations to develop, implement, and enforce fishery 

regulations to minimize loggerhead bycatch in commercial trawl fisheries. 

635. Encourage and assist foreign nations to develop, implement, and enforce fishery 

regulations to minimize loggerhead bycatch in commercial gillnet fisheries. 

636. Encourage and assist foreign nations to develop, implement, and enforce fishery 

regulations to minimize loggerhead bycatch in other commercial fisheries. 

637. Develop economic incentives to reduce fishery interactions and mortality of 

loggerheads in foreign high seas fisheries. 

638. Encourage ICCAT, Canada, Mexico, and the European Union to implement 

standards for collecting loggerhead bycatch information and requirements to 

minimize loggerhead bycatch. 

64. Develop and implement a strategy to assess, monitor, and minimize effects of trophic 

changes on loggerheads from fishing and habitat alteration. 

641. Assess loggerhead diets and food web linkages in neritic and oceanic habitats. 

642. Assess and minimize effects of commercial harvest of loggerhead prey species. 
II-33

643. Assess effects of habitat alteration from commercial fisheries on distribution 

and abundance of loggerhead prey species. 

65. Develop and implement a strategy to minimize the effects of marine debris ingestion 

and entanglement. 

651. Determine frequency of marine debris ingestion and entanglement by 

loggerheads in neritic and oceanic habitats. 

652. Evaluate the sublethal effects of marine debris ingestion and entanglement on 

loggerheads. 

653. Enforce the International Convention for the Prevention of Pollution from Ships 

(MARPOL). 

654. Explore feasibility and provide incentives to reduce the amount of abandoned 

recreational and commercial fishing gear that causes loggerhead injury and 

mortality. 

655. Explore feasibility and provide incentives to reduce the amount of non-fisheries 

related marine debris that causes loggerhead injury and mortality. 

656. Maintain or implement marine debris cleanup programs in coastal waters. 

66. Develop and implement a strategy to reduce vessel strikes. 

661. Develop a comprehensive GIS database to assess vessel interactions with 

loggerheads. 

662. Develop and implement a strategy to reduce vessel interactions with 

loggerheads. 

67. Monitor and minimize mortality from channel dredging activities. 

671. Assess effects of new technologies for channel dredge equipment on loggerhead 

captures. 

672. Incorporate effective channel dredge equipment modifications into future 

operations. 

673. Maintain current requirements for channel dredging activities in the southeast 

U.S. Atlantic and Gulf of Mexico and evaluate whether additional measures are 

required to minimize loggerhead mortality. 

674. Implement regional requirements for channel dredging activities north of North 

Carolina to minimize loggerhead mortality. 

7. Facilitate recovery through public awareness, education, and information transfer. 

71. Develop and distribute educational materials. 

711. Develop a video about the impacts of beachfront lighting on loggerheads and 

ways to minimize impacts. 

712. Maintain websites with comprehensive information about loggerheads. 

713. Develop an educational curriculum for students and the public about loggerhead 

demography and ecological roles. 

714. Use computer gaming technologies to engage young people in sea turtle 

conservation. 

72. Facilitate international scientific communication and information sharing. 

73. Ensure facilities permitted to hold and display captive loggerheads have appropriate 

informational displays. 

74. Ensure standard criteria and recommendations for sea turtle nesting interpretive walks 

are followed. 

75. Develop guidelines for and encourage interpretive daytime turtle walks. 
II-34

76. Place educational signs at public access points on nesting beaches and points of access 

to the marine environment. 

77. Conduct a contingent valuation study to measure the economic value of sea turtle 

related ecotourism. 
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F.2. RECOVERY ACTION NARRATIVE

1. Determine demographic parameters, refine population genetic structure, and monitor 

distribution, abundance, and trends. 

11. Monitor and refine population genetic structure. 

111. Refine geographic boundaries of recovery units. 

Current research on genetic markers in loggerheads that nest in the southeast 

U.S. suggests four distinct nesting assemblages based on analysis of haplotypes 

from mtDNA. The geographic boundaries of U.S. recovery units may need to 

be refined in order to correctly apply population status assessments, threats 

assessments, and recovery actions. Genetic analyses, including continuous 

spatial sampling of nesting females, are needed to fully describe spatial 

population structure throughout the loggerhead’s Atlantic nesting range and to 

identify recovery unit boundaries based on breakpoints in nesting occurrence 

and nesting female relatedness. To fully describe nesting female relatedness, 

additional analyses are needed using the non-coding regions of the mtDNA 

genome and more precise analyses of nuclear DNA using microsatellite 

techniques. 

112. Monitor population genetic structure on foraging grounds. 

To effectively manage sea turtle populations and determine the efficacy of nest 

protection activities, we need to determine the origin of juvenile and subadult 

turtles. Such knowledge could be critical if progeny from specific nesting 

beaches exhibit different behavior, movements, or foraging ranges than turtles 

from other beaches. Such differences could result in high mortality in some 

nesting populations and low mortality rates in other populations. 

113. Develop new techniques for refining population genetic structure. 

Rapidly evolving techniques for analyzing genetic data provide increasing 

resolution of population structure. Analysis of nuclear DNA (microsatellites), 

representing both male and female contributions to date, suggests that males 

from particular subpopulation units mate with females from other subpopulation 

units producing a homogeneous population at the nuclear DNA level. Genetic 

analyses of paternity have also shown that females mate with multiple males 

(eggs in an individual nest have one to three fathers). It is not yet known how 

many males contribute to the nesting within a rookery. It is possible that future 

genetic analyses will reveal even more detailed population structure. 

12. Monitor nesting abundance and trends by recovery unit. 

Nesting surveys are undertaken on the majority of loggerhead nesting beaches in the 

U.S. and on the major loggerhead nesting beaches in Mexico. However, in the past, 
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beach coverage from year to year varied, as did the frequency of surveys, experience 

and training of surveyors, and data reporting. Consequently, nesting survey data did 

not represent regionwide nesting population trends. Survey data should be derived 

from observations of tracks and other nesting signs left on beaches by sea turtles. 

Species identifications and determinations of nesting or non-nesting emergences should 

be based on evaluations of features of tracks and nests (e.g., track configuration, size of 

the body pit) as described by Pritchard et al. (1983) and Schroeder and Murphy (1999).

121. Maintain and/or adopt standardized criteria for on-the-ground nesting surveys. 

Standardized nesting survey criteria, such as those developed by the FFWCC 

[http://myfwc.com/seaturtle/Guidelines/MarineTurtleGuidelines.htm], should be 

maintained and/or adopted across all recovery units to gather a long-term 

(approaching a generation time of 50 years) database on nesting activity that can 

be used as an index of nesting population trends representing each recovery unit 

over the entire nesting range in the Northwest Atlantic. 

122. Continue to monitor trends in nesting and non-nesting emergences on 

index/standardized beaches. 

Daily surveys of specific beach areas are necessary to identify, enumerate, and 

evaluate nesting activities. In addition to monitoring population trends, 

researches and managers can determine the ratio of nests to non-nesting 

emergences (i.e., aborted nesting attempts) between years and beaches to 

evaluate changes in nesting success. This information can then be used by 

managers to assess the effects of human activities (e.g., coastal construction, 

beach renourishment) on turtles and their nests and identify areas where 

increased conservation efforts may be needed. 

To minimize variation that results from sampling error, ensure that index 

beaches continue to represent a broad geographic range, that daily surveys 

represent all nesting during the index period, and that annual training workshops 

are conducted to ensure standardization and consistency. 

123. Incorporate index/standardized nesting survey protocols on additional beaches 

to fully represent recovery units. 

Additional beaches should be surveyed in accordance with index/standardized 

nesting survey protocols to fully represent the four recovery units located in the 

southeast U.S. including Bon Secour NWR, Alabama; Dry Tortugas National 

Park, Florida; Cape Romain NWR, South Island, Kiawah Island, and Hilton 

Head, South Carolina; and Cape Lookout National Seashore, Cape Hatteras 

National Seashore, Onslow Beach, and Bald Head Island, North Carolina. 

Outside of the U.S., additional beaches should be surveyed to fully represent the 

Greater Caribbean Recovery Unit. 
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124. Monitor annual nesting and non-nesting emergences on non-index/nonstandardized beaches as extensively as possible. 

Although nesting surveys on non-index/non-standardized beaches may be too 

inconsistent to allow an accurate trend assessment, these surveys can provide a 

more complete assessment of nesting range and seasonality than the 

spatial/temporal subsample of index beaches and index season. When 

conducted extensively, these surveys can provide a near census of loggerhead 

nesting that is valuable as an estimate of total abundance. Although they are 

variable in occurrence, non-index/non-standardized beach surveys ensure that 

nesting data for management decisions are not only limited to the smaller subset 

of index beaches. 

125. Conduct periodic censuses of recovery units to obtain total nest counts and 

geographic distribution of nesting. 

Periodic censuses (once every 5 years) of nesting throughout the range for each 

recovery unit are needed to obtain total nest counts and to detect changes in 

geographic distribution. These surveys should encompass the complete 

geographic range and the entire nesting season (April 15 to September 15). To 

completely represent geographic range, daily surveys are needed on beaches 

where recent surveys have never been undertaken or are rarely undertaken due 

to difficult access (e.g., Chandeleur Islands, Louisiana; Ten Thousand Islands 

NWR and Cape Sable, Florida; Wolf Island, Pine Island, and Little Tybee 

Island, Georgia; Myrtle Beach, Bay Point Island, Little Capers Island, Otter 

Island, and Cedar Island, South Carolina; Masonboro Island, North Carolina; 

and representative beaches in the GCRU (e.g., Cay Sal Bank, The Bahamas). 

13. Monitor in-water population abundance and trends. 

131. Establish a network of index in-water study sites across the range of all habitats 

(neritic and oceanic) and develop sampling protocols to estimate indices of 

abundance and determine trends. 

A network of index in-water study sites representing all loggerhead life stages 

across neritic and oceanic habitats is needed to monitor population trends. 

While sampling methods (e.g., tangle nets, hand capture, trawl capture) do not 

have to be standardized among studies, consistent sampling protocols within 

studies need to be developed. Additionally, a repository must be identified to 

maintain annual survey data such that comprehensive trend analyses can be 

conducted across the range of the species. 
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132. Evaluate, improve, maintain, and expand in-water surveys at index sites to 

estimate indices of abundance and determine trends. 

Approximately 15 to 20 in-water sites are currently sampled, at varying effort 

levels, to collect information on loggerheads. An evaluation of these existing 

sampling sites is needed to determine their ability to contribute to long-term 

population trend analyses. As necessary, efforts should be undertaken to 

improve and/or expand these sampling efforts to ensure that resulting data will 

contribute to the overall effort of population monitoring. The maintenance of 

these sampling programs over the long-term is critical to their success. 

133. Develop sampling protocols for conducting large-scale in-water surveys to 

estimate indices of abundance and determine trends. 

Large-scale surveys to estimate loggerhead abundance and to monitor 

population trends are needed in conjunction with smaller-scale index site 

monitoring. An evaluation of large-scale survey techniques for sea turtles (e.g., 

aerial, shipboard, etc.) should be conducted, perhaps through a workshop forum, 

to thoroughly assess the feasibility, cost, and likelihood of success of the 

different techniques. Specific sampling protocols and sampling regimes should 

be developed to ensure success. 

134. Implement large-scale in-water surveys to estimate indices of abundance and 

determine trends. 

Large-scale surveys to estimate loggerhead abundance and to monitor 

population trends should be implemented in a timely manner following the 

development of sampling protocols. Regular evaluations of the effectiveness of 

these survey techniques and the applicability of results to monitoring recovery 

should be conducted. As with smaller scale index surveys, maintaining these 

sampling programs over the long-term is critical to their success. 

14. Determine geographic distribution patterns of in-water populations. 

141. Develop and maintain a comprehensive GIS database of distribution and 

abundance. 

The use of spatial analysis tools is an extremely valuable and ultimately cost 

effective way of identifying distribution patterns and incorporating this 

information into conservation strategies and actions. A comprehensive GIS 

database, incorporating all available information on loggerhead distribution and 

abundance should be developed, maintained, and made available to facilitate 

effective management decisions. Linked to action 29. 
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142. Determine migratory pathways for all life history stages. 

Tag recapture data provide point-to-point information on movements of 

loggerheads away from nesting beaches, from foraging areas to nesting beaches, 

or from one foraging area to another. More recent satellite tagging technologies 

provide higher resolution location information on movements of loggerheads in 

marine habitats, at both large and small scales. The effective integration and 

analysis of turtle movement data with oceanographic data in a GIS format is 

critical to understanding and predicting movements and habitat use. These 

technologies, when fully exploited, will ultimately result in more effective and 

targeted conservation strategies and actions. 

15. Determine and monitor female reproductive output by recovery unit. 

To understand sea turtle nest productivity, it is necessary to determine the number of 

eggs laid, the number of eggs that successfully hatch (hatching success), and the 

number of hatchlings that successfully emerge from nests (emerging success). 

Monitoring changes in these numbers over time will allow for decisions to be made on 

management actions that may be needed to address problems. 

Knowing the remigration interval (interval between nesting seasons) and the clutch 

frequency (number of clutches laid by an individual in a nesting season) of females 

allows us to assess the status of a nesting population by allowing us to estimate the total 

number of mature females in a population. To convert the number of nesting females 

per year to the total number of reproductively active females in a population, the 

average remigration interval and clutch frequency must be known. 

151. Adopt standardized hatchling production assessment criteria. 

The FFWCC guidelines for Hatching Success Evaluations (Nest Inventories)

[http://myfwc.com/seaturtle/Guidelines/MarineTurtleGuidelines.htm] provide a 

good method for ensuring nest productivity data are collected in a manner that 

will allow assessments of hatching and emerging success that can be compared 

to other beaches and to other nesting seasons. 

152. Implement annual assessments of hatchling production using standardized 

criteria. 

Hatching and emerging success on nesting beaches should be evaluated on all 

nests or on a random and representative sample of nests. The evaluation of 

hatching success involves excavating and inventorying a nest after the 

hatchlings have left it (or should have left it) to determine the fate of each egg. 

Selecting a sufficient number of representative sample nests will allow accurate 

assessments of nest productivity. An insufficient number of sample nests or a 

sample of nests that is poorly representative, no matter how numerous, will 

yield potentially misleading information about hatching and emerging success. 
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153. Determine and monitor clutch frequency. 

If the number of nesting emergences varies significantly among years, this 

could reflect changes in the number of nesting females, clutch frequency, or 

both. Therefore, it is essential that clutch frequency be regularly monitored. 

Saturation tagging programs (programs that attempt to place identification tags 

on every nesting turtle) have proven to be valuable in measuring clutch 

frequency. However, logistical limitations of saturation tagging programs are 

not likely to allow unbiased estimates of clutch frequency (measured by nests 

per nesting season). Recent advances in satellite telemetry (e.g., GPS-linked 

satellite tags) may allow the development of reproductive histories of individual 

turtles so that a mean and variance can be calculated for clutch frequency. 

154. Determine and monitor remigration interval. 

A variety of techniques (e.g., satellite telemetry, laparoscopy, saturation 

tagging) should be evaluated to determine which technique(s) is best suited to 

ascertain and monitor remigration intervals. The most effective technique(s) 

should be implemented on a representative sample of nesting beaches. 

155. Determine female reproductive lifespan. 

Reproductive lifespan is the number of years over which individuals remain 

reproductively active and can be estimated as the difference between age at 

sexual maturity and maximum age, if reproductive senescence does not occur. 

Maximum age can be estimated from population models that include annual 

survival estimates. Reproductive lifespan can also be estimated from long-term 

tagging studies of reproductive females if corrections for tag loss, resighting 

probabilities, and lack of site fixity can be incorporated. 

 

16. Determine and monitor demographic parameters at index in-water sites. 

Monitoring population trends and developing indices of abundance at in-water sites 

provides information on whether populations are stable, increasing, or declining, but 

does not provide information on the causes behind these observed population trends. 

Monitoring demographic parameters at in-water sites can provide information on 

potential causes for changes in population trends and may provide early warning 

signals of impending population declines. Concurrent with a large-scale index in-water 

sampling program aimed at monitoring population trends, data on demographic 

parameters that can be monitored over the long-term and compared among index sites 

should be collected. 
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161. Develop sampling and data collection protocols for demographic parameters. 

1611. Refine and develop techniques for determining sex ratios. 

Because sea turtles have environmentally determined sex ratios, 

changes in geographic ranges of loggerheads or climate may skew sex 

ratios sufficiently to affect demography. We need to better understand 

and monitor this demographic parameter across all recovery units. 

Techniques using blood hormone levels or laparoscopy allow 

researchers to determine the sex of live immature turtles, so distribution 

by sex can be determined from in-water surveys. Sex ratios may also 

be determined from necropsies of stranded turtles. 

1612. Refine and develop aging techniques. 

Aging techniques for loggerhead sea turtles are improving, but we need 

to continue to refine and develop this technology. Age/size keys will 

allow large data sets on size structures of loggerhead aggregations to be 

converted into age structures. Size information has been useful to track 

size-biased sources of mortality or changes in population size structure, 

but models based on age structure may be even more valuable. 

1613. Determine somatic growth rates and evaluate sources of variation. 

Somatic growth rates have direct effects on other demographic 

parameters such as survival, duration in life-stage, and age at sexual 

maturity. Somatic growth rates can be used as an index of habitat 

quality and population health. Several techniques have been used to 

determine somatic growth rates in loggerheads, and most studies have 

suffered from small sample size. Studies are needed that (1) compare 

techniques, (2) are based on large sample sizes, and (3) explicitly model 

the effects of biological and environmental covariates on somatic 

growth. 

1614. Determine age-specific survival probabilities. 

Age/stage-specific survival probabilities are key parameters for models 

predicting population growth rates and recovery of sea turtles. 

Determining survival rates for all life stages and for all recovery units is 

critical. 

1615. Determine age at sexual maturity for females. 

All species of sea turtles exhibit late maturity. Initial estimates of age 

at sexual maturity for female loggerheads from the southeast U.S. were 

around 20 years, but recent estimates exceed 30 years based on 
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modeling efforts. Additional research is needed to refine current 

estimates of age at sexual maturity. Age at maturity is a key feature of 

demographic models, and our understanding of this parameter and how 

it may differ across recovery units is critical. Long-term population 

growth rates and responses to perturbations are strongly influenced by 

age at sexual maturity. 

1616. Determine age at sexual maturity, reproductive frequency, and 

reproductive lifespan for males. 

Relative to female loggerheads, survival and reproductive activity of 

males are poorly studied, largely because males are less accessible. 

Because global warming may result in lowered production of male 

hatchlings and males may provide genetic exchange between different 

subpopulations, greater effort is needed to collect data on demographic 

parameters for male loggerheads. 

162. Implement sampling and data collection protocols at index in-water sites. 

Standardized protocols (see action 161) should be implemented at index inwater sites and a repository should be established and maintained such that 

demographic parameter data from identified index sites can be comprehensively 

archived, analyzed, and used to gauge recovery status, evaluate management 

actions, and develop additional conservation strategies. 

17. Maintain and improve the Sea Turtle Stranding and Salvage Network. 

The Sea Turtle Stranding and Salvage Network (STSSN) was established in 1980 to 

collect information on and document strandings of sea turtles along the U.S. Atlantic 

and Gulf coasts. The network encompasses the coastal areas of the 18-state region 

from Maine through Texas, and includes portions of the U.S. Caribbean. Data are 

compiled through the efforts of network participants who document sea turtle 

strandings in their respective areas and contribute those data to the centralized STSSN 

database. Stranding survey data are less comprehensive outside the U.S. 

171. Maintain the Sea Turtle Stranding and Salvage Network. 

Most accessible U.S. beaches in the Atlantic and Gulf of Mexico are surveyed 

for stranded sea turtles by volunteer or contract personnel. Through the STSSN, 

stranding data are archived and summarized by the SEFSC. These data provide 

information relative to at-sea mortality and can be a cost effective means of 

evaluating the effectiveness of recovery actions, including regulatory 

requirements. These data also provide basic biological information on sea 

turtles and are useful in determining other sources of mortality. The expansion 

of stranding surveys in the GCRU would provide additional data on at-sea 

mortality for this region. 
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172. Implement improvements to the Sea Turtle Stranding and Salvage Network. 

Improvements to the STSSN are needed for improving data submission, 

timeliness of data availability, data access, response to large-scale stranding 

events, and assessing causes of death. Understanding and measuring (where 

possible) stranding survey effort is important to ensure that stranding trends are 

not influenced by changes in survey effort. Efforts should be undertaken to 

incorporate near real-time data reporting through on-line data entry and 

uploading high quality digital photographs of strandings. Map utility tools 

should be investigated and employed on-line to ensure accurate location 

assignment for stranding locations. Improvements in time to data availability 

and data access are needed to ensure rapid and appropriate response to unusual 

stranding events and to gauge the success of management actions. 

18. Maintain and enhance centralized administration and coordination of tagging programs. 

A database exists to archive flipper tag series used by researchers 

[http://accstr.ufl.edu/taginv.html], although not all researchers have provided their tag 

series. Maintenance and expansion of this database should be supported. A similar 

database needs to be maintained for PIT tags. Compatability issues among PIT tag 

readers and PIT tags need to be considered and addressed, in addition to standardized 

placement of PIT tags on turtles. 

In addition to the tag series database, a centralized turtle tagging database, including all 

tagging data, would substantially benefit loggerhead management and should be 

pursued. Major challenges to establishing such a database include the reluctance of 

individuals to provide their data, appropriate protection against unethical use of data, 

and support for the demanding curatorial work that would be required. 

2. Assess, monitor, and protect habitats. 

21. Ensure beach sand placement projects are conducted in a manner that accommodates 

loggerhead needs and does not degrade or eliminate nesting habitat. 

Beach sand placement projects (e.g., beach nourishment, beach restoration, inlet sand 

bypassing) in the U.S. may increase sea turtle nesting habitat if the placed sediment is 

highly compatible (i.e., grain size, shape, color, composition, etc.) with naturally 

occurring beach sediments in the area, and compaction and escarpment remediation 

measures are incorporated into the project. In addition, a constructed beach that is 

designed and engineered to mimic a natural beach system may be temporarily more 

stable than the eroding one it replaces, thereby benefiting sea turtles. 
II-44

211. Conduct periodic reviews of existing state and FWS criteria for sand placement 

projects and modify as necessary. 

State resource agencies and FWS currently review proposed sand placement 

projects for potential impacts on sea turtles. Terms and conditions are 

subsequently incorporated into state and U.S. Army Corps of Engineers permits 

to ensure impacts are minimized. A panel composed of sea turtle biologists and 

coastal biologists and engineers should be formed to review existing terms and 

conditions and ensure they are adequate and feasible. 

212. Minimize the effects of beach and dune sand placement projects on 

loggerheads. 

2121. Ensure all beach sand placement projects are in compliance with state 

and FWS criteria. 

All beach sand placement projects should be conducted in compliance 

with state and FWS requirements to minimize incidental take of sea 

turtles during and following beach sand placement projects. These 

requirements address protection of nests laid within the project area, 

sand quality (e.g., coloration, grain size distribution), compaction and 

escarpment monitoring and remediation, placement and nighttime 

storage of construction equipment, and project lighting. 

2122. Establish protocols for removing sand that is determined to have not 

met sand suitability requirements. 

Protocols should be established for the removal of any fill material that 

is determined to not meet state and FWS sand quality requirements. 

This should include protocols for ceasing the placement of any material 

determined to be unsuitable during the construction phase, as well as 

removing any material determined to be unsuitable post-construction. 

2123. Evaluate the effects of dredging of nearshore ebb tidal shoals on 

adjacent nesting habitat. 

Dredging of nearshore ebb tidal shoals should be evaluated to 

determine the impacts on adjacent loggerhead nesting habitat, including 

nesting habitat that occurs updrift of the shoals. 

213. Ensure sand compaction levels following beach sand placement do not hinder 

sea turtle nesting or hatchling productivity. 

Beach sand placement may result in changes in sediment composition, sand 

density, beach shear resistance, sand grain size, and sand grain shape. These 

changes could result in adverse impacts on nest site selection, digging behavior, 
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hatching success, and emerging success. Studies have shown that beach sand 

compaction following nourishment projects may be persistent. Therefore, 

multi-year sand compaction monitoring should be required for all nourishment 

and dune building projects. 

2131. Evaluate sand compaction levels on native beaches for all recovery 

units to determine thresholds for tilling. 

Impacts on sea turtles can be minimized by using suitable sand and by 

tilling the beach after nourishment if the sand becomes compacted. 

Tilling a nourished beach may reduce sand compaction to levels 

comparable to unnourished beaches. In order to determine thresholds 

that trigger the need for tilling, sand compaction levels should be 

evaluated on a representative number of native beaches (i.e., beaches 

that have never had sand placement on them) within all recovery units. 

Evaluation of sand compaction should include the entire beach profile. 

2132. Investigate alternative methods for monitoring sand compaction. 

Cone penetrometers are the standard means of measuring sand 

compaction on sea turtle nesting beaches. Many investigators have 

experienced problems with inconsistent and non-repeatable results 

when measuring beach compaction with cone penetrometers. Other 

tools for measuring beach compaction are available; however, their 

applicability in assessing the suitability of a beach for turtle nesting is 

still unknown. 

2133. Implement tilling as a means of softening compacted beaches. 

Tilling a nourished beach with a root rake can reduce sand compaction 

to levels comparable to unnourished beaches. However, researchers 

have found that tilled beaches may become compacted again over time. 

Therefore, multi-year beach compaction monitoring should be 

conducted and, if necessary, tilling should be undertaken to ensure that 

project impacts on sea turtles are minimized. Tilling should be 

conducted to a minimum depth of 36 inches. Tilling is usually 

conducted by using heavy equipment (e.g., bulldozers), preferably with 

the rake being pulled behind the heavy equipment to minimize 

compaction during tilling. 

214. Implement escarpment leveling and/or profile adjustment on constructed 

beaches as needed. 

On constructed beaches, steep escarpments may develop along the water line 

interface as the beach adjusts from the construction profile to a more natural 

beach profile. These escarpments can hamper or prevent access of female 
II-46

turtles to suitable nesting sites. Leveling escarpments prior to or during (if 

deemed appropriate) the nesting season should be conducted to minimize this 

impact. On some constructed beaches that experience extreme scarping, 

additional efforts may be required to contour the entire profile to create a lower, 

more gently sloped berm. 

215. Ensure sediment grain size, composition, sorting, and color are compatible with 

native beaches. 

Guidelines should be followed to ensure sand grain size, composition, sorting, 

and color of sediments used in sand placement projects are suitable for turtle 

nesting. To provide the most suitable sediment for nesting sea turtles, the sand 

grain shape, size, and mineral content, as well as the sorting and color of the 

nourished sediments, must resemble the natural beach sand in the area. Natural 

reworking of sediments and bleaching from exposure to the sun would help to 

lighten dark nourishment sediments; however, the timeframe for sediment 

mixing and bleaching to occur could be critical to one or more successful sea 

turtle nesting seasons. 

216. Ensure sediment sources do not contain contaminants that impact sea turtle 

nests. 

Chemical residues in sea turtle eggs have been recognized as both a regional 

and global concern. Researchers have identified elevated concentrations of 

organochlorine pesticides, polychlorinated biphenyls (PCB), polycyclic 

aromatic hydrocarbons (PAH), and a variety of metals and trace elements in 

unhatched sea turtle eggs from the Florida Panhandle. However, it was 

uncertain if these contaminants contributed to embryonic mortality of unhatched 

eggs or if these contaminants otherwise affected turtle hatching success. It was 

also undetermined if the elevated contaminant levels were the result of maternal 

transfer or exposure at the nesting site. 

2161. Conduct research on contaminant levels of sediment sources and their 

effects on loggerheads. 

Although coarse borrow sediment is not conducive to adherence by 

contaminants, plankton and other organic materials can hold 

contaminants and are likely present in the borrow sediments, which 

could negatively affect sea turtle nests. The U.S. Environmental 

Protection Agency (EPA) and U.S. Army Corps of Engineers (1998) 

testing manual for the evaluation of dredged materials for discharge in 

waters of the U.S. provides a tiered approach that should be followed 

for determining what contaminants might be present dependent on the 

borrow source. In addition, EPA has tight controls on inlet material 

testing and ocean disposal testing, and the Clean Water Act section 
II-47

404(b)(1) guidelines at 40 CFR 230.60 should be followed when 

considering testing. 

 

2162. Evaluate and revise, if necessary, current Federal guidelines for 

contaminant levels of sediment sources to ensure compatibility with 

loggerhead development. 

Core samples of potential borrow sediments are required to be taken 

and analyzed for compatibility prior to placement on nesting beaches. 

In addition to looking at the compatibility of these sediments to sand on 

native beaches in an area, contaminant (both organic and inorganic) 

levels should also be evaluated. 

2163. Conduct statistically valid sampling of borrow sediments for 

contaminants (pre- and post-construction) and ensure sediment sources 

do not exceed existing Federal guidelines for contaminant levels. 

Studies are needed to better define the relationship of environmental 

contaminants on constructed beaches and reproductive success in sea 

turtles. 

217. Design and evaluate beach construction profiles to more closely mimic natural 

beaches. 

Traditionally constructed beaches tend to be wide and flat, whereas heavily 

nested natural beaches are often relatively narrow and steeply sloped. Reduced 

nesting and increased nest loss to erosion typically reduce hatchling production 

on constructed beaches relative to natural beaches. Research should be 

conducted to determine the aspects of beaches that make them good nesting 

habitat and, to the greatest extent practicable, alternative construction templates 

should be designed, built, and monitored to mimic those conditions. 

218. Re-establish natural dune structure and native vegetation during sand placement 

projects. 

Beach nourishment projects should include dune restoration, and appropriate 

native salt-resistant dune vegetation should be established on the restored dunes. 

This will enhance beach stability and nesting habitat and require less frequent 

sand placement activities. 
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219. Monitor and assess the effects of beach and dune sand placement projects on 

loggerhead nesting. 

2191. Monitor suitability of post-construction beaches for nesting. 

Post-construction monitoring of sediment quality, profile equilibration, 

and effectiveness of tilling and escarpment leveling, as well as nesting, 

hatching, and emerging success, should be conducted to (1) ensure 

projects meet design specifications, (2) determine the effectiveness of 

remediation measures, and (3) ensure projects are not having a 

significant negative impact on sea turtles. 

2192. Develop and maintain an inventory of beach and dune sand placement 

projects and periodically assess the cumulative effects of these projects 

on loggerhead nesting and hatchling production. 

A comprehensive inventory of beach and dune sand placement projects 

is needed to measure population effects. These findings should be 

used, as appropriate, to modify existing state and FWS criteria for these 

projects (see action 211). 

22. Minimize degradation of nesting habitat from barriers to nesting. 

221. Categorize and inventory all beach armoring, shoreline stabilization structures, 

and all other barriers to nesting to establish baseline levels and develop a GIS. 

Despite the importance of beach habitat quality to sea turtle nesting, there has 

been no inventory of potential barriers to nesting on any significant stretch of 

beach in the southeast U.S. Southeast U.S. beaches should be inventoried for 

potential barriers to sea turtle nesting to obtain a complete catalog of 

anthropogenic structures on nesting beaches. A technique should be developed to 

allow for rapid, repeated inventories that could measure changes in beach habitat 

over time. 

 

222. Ensure that the percentage of nesting beach free of any barriers to nesting is 

stable or increasing relative to baseline levels determined in 221. 

Coastal development, coupled with critical beach erosion, has led to the 

placement of structures such as armoring (e.g., seawalls, revetments, etc.), sand 

fences, and other erosion control structures to protect upland property. These 

structures, in addition to other hard anthropogenic features that range from 

recreational equipment (e.g., beach furniture, catamarans) to actual buildings, 

are often barriers to nesting females and have already destroyed or degraded 

many miles of nesting habitat. 
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2221. Convene an expert panel to develop a strategy to strengthen and guide 

regulations to minimize the effects of coastal armoring on loggerheads 

and to ensure that the percentage of nesting beach free of any barriers to 

nesting is stable or increasing relative to baseline levels determined in 

221. 

An expert panel should be convened to assess the effects of coastal 

armoring on sea turtles and develop a strategy to minimize any negative 

effects. At a minimum, consideration should be given to the placement 

and types of armoring, prohibition of armoring, gap closure, removal of 

existing armoring structures, options for eliminating the need for or 

reducing the impacts of armoring, and emergency situations/exceptions. 

2222. Modify existing regulations or promulgate new regulations to 

implement the strategy developed in 2221. 

State regulations prohibiting or discouraging some forms of coastal 

armoring now exist in Florida, South Carolina, and North Carolina. 

State resource agencies should review existing state regulations related 

to coastal armoring and other barriers to nesting and modify or 

promulgate new regulations as appropriate to implement the strategy 

developed by the expert panel from 2221. 

2223. Ensure regulations governing placement and design of new coastal 

buildings and infrastructure eliminate any future need for coastal 

armoring. 

State resource agencies should review existing state regulations related 

to placement and design of new coastal structures (e.g., design 

elevations, pile foundations, heights of structural members of habitable 

structures) and modify or promulgate new regulations as appropriate to 

reduce the potential for damage due to storm tides and waves and thus 

reduce the need for coastal armoring. 

2224. Require removal of failed or ineffective erosion control structures. 

Failed erosion control structures, such as uncovered geotextile bags or 

tubes and fragmented concrete or wooden structures, degrade nesting 

habitat and deter nesting activities. State resource agencies should 

ensure failed or ineffective structures are removed from nesting 

beaches. 

2225. Prohibit recreational equipment on nesting beaches at night. 

Sea turtles prefer to nest on the mid to upper beach, protecting their 

nests from repeated and prolonged high tides. Recreational equipment 
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(e.g., beach furniture, umbrellas, marine craft, tents) that are left on the 

beach at night can prevent nesting turtles from reaching the mid to 

upper beach. Therefore, at night, all recreational equipment should be 

completely removed from the beach by hand and stored behind the 

primary dune. Regulations should be developed and enforced to ensure 

these types of impediments to nesting are managed or eliminated. 

2226. Evaluate the effectiveness of dune crossovers for protecting dunes and 

strengthen existing regulations or promulgate new regulations to 

minimize effects from dune crossovers. 

State resource agencies should evaluate the effectiveness of the variety 

of dune crossover options in protecting dunes and dune vegetation and 

for their propensity to block sea turtle access to nesting sites and entrap 

nesting females. States should modify or promulgate new regulations 

as appropriate based on the results of this evaluation. Consideration 

should be given to reducing the number of crossovers associated with 

individual residences by requiring crossover sharing. State resource 

agencies should also require that new crossovers be constructed in a 

manner that will minimize interactions with nesting turtles (e.g., 

monopole construction, stopping short of the beach itself, roped 

corridors). 

2227. Evaluate the effectiveness of sand fences for building beaches and 

strengthen existing regulations or promulgate new regulations for sand 

fence construction. 

Research is needed to determine how the negative effects of sand 

fences on sea turtles can be minimized. Research should include 

assessments of sand fence effectiveness and alternative techniques such 

as degradable fencing, hay bales, and planting native pioneering 

vegetation. Regulations should be modified or new regulations 

promulgated as appropriate based on the results of this research. In 

Florida, South Carolina, and North Carolina standard requirements for 

sand fence construction have been established to minimize impacts to 

sea turtles, and state resource agencies should ensure these 

requirements are enforced. Similar regulations should be developed 

and enforced in other states where they do not currently exist. 

2228. Ensure regulations pertaining to barriers to nesting are enforced. 

Illegal coastal armoring occurs, and in some cases no effective action is 

taken to ensure the material is removed and the habitat restored. In 

addition, coastal armoring structures sometimes fail and break apart, 

which results in the presence of debris on the beach. The same holds 

true for other barriers, such as stairways and ramps that have been built 
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on the beach to allow human access. State resource agencies and local 

governments with coastal permitting responsibilities should frequently 

monitor beaches and maintain strict enforcement when violations are 

observed and ensure all debris and structural material from failed 

structures is removed from the nesting beach area and properly 

deposited offsite. 

23. Maintain and acquire nesting beaches and adjacent uplands to be held in public trust. 

Maintenance of sea turtle recovery units is dependent on securing and protecting 

sufficient stretches of nesting beaches. Beachfront development invariably generates 

human demands for coastal armoring to protect private property. Upland development 

also results in artificial lighting behind nesting beaches. Nighttime human activities on 

beaches can also deter nesting females. Resident and visitor use of developed and 

developing nesting beaches can adversely affect nesting sea turtles, incubating egg 

clutches, and hatchlings. For these reasons, nesting beaches should be acquired and 

protected to ensure long-term availability of suitable beaches for nesting. 

231. Maintain at least the current length and quality of protected nesting beach. 

As of 2007, 1,581 km of nesting beach in the U.S. were identified as being 

within conservation lands in public (Federal, state, or local government) 

ownership and privately owned conservation lands (e.g., non-profit conservation 

foundations) (Appendix 4). Most of these lands are generally managed in a way 

that benefits sea turtle conservation. Public lands that have lighted 

development, armoring, or other profound threats to sea turtle nesting have not 

been included. In compiling the list of conservation lands, human visitation was 

not considered a profound threat to sea turtle nesting. Therefore, public lands 

designated for human recreation have been included. At a minimum, the 

amount of nesting beach in such protected status should be maintained. 

232. Acquire additional parcels of nesting beach and adjacent uplands or otherwise 

ensure long-term protection. 

Important nesting beaches and adjacent upland buffers should be acquired 

through fee title acquisition. Conservation easements and development rights 

should be acquired on properties where fee title acquisition is not possible. 

2321. Acquire additional beachfront and upland properties (undeveloped and 

developed) within the boundaries of the Archie Carr National Wildlife 

Refuge, Florida. 

About 60% of the available beachfront acquisitions for the Archie Carr 

NWR have been completed. Approximately 9.2 km (5.7 miles) (of 

which approximately 8.0 km (5.0 miles) are within the original 

acquisition boundary) have been acquired and about 1.9 km (1.2 miles) 
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remain undeveloped and are awaiting purchase. The remaining lands 

have been purchased for private development and are no longer 

available. Escalating coastal development in Brevard and Indian River 

counties threatens the remaining parcels identified for acquisition. 

Ongoing development continues to fragment the remaining habitat, and 

a narrow window of opportunity is left to acquire the last remaining 

lands required for the Refuge. 

Efforts should also be made to acquire beachfront properties adjacent to 

the Refuge boundaries, including both undeveloped and developed 

parcels, as well as coastal strand, scrub, and maritime hammocks to the 

west of the Refuge, which would not only protect some of the most 

fragile and endangered natural upland communities in Florida and the 

nation, but also protect the nesting beaches from artificial lighting 

encroachments and other human impacts. 

2322. Acquire additional beachfront and upland properties (undeveloped and 

developed) on Hutchinson Island, Florida, and develop a plan to ensure 

long-term protection. 

Approximately 10% of loggerhead nesting in the U.S. occurs along this 

37-km (22.9-mile) beach. Development is degrading nesting habitat 

and public use is greatly disturbing nesting activities. Threats should 

be evaluated and appropriate measures taken, including acquisition, to 

ensure long-term protection. FWS has already identified 3.2 km (2.0 

miles) within this stretch of beach for inclusion as part of the Hobe 

Sound NWR; however, funding has not been allocated for this 

acquisition. High priority should be given to acquiring this parcel and 

other undeveloped and developed parcels on Hutchinson Island. 

2323. Acquire additional beachfront and upland properties (undeveloped and 

developed) within the nesting range of the Peninsular Florida Recovery 

Unit and develop a plan to ensure long-term protection. 

Other nesting beaches that contribute to the historic nesting distribution 

of the Peninsular Florida Recovery Unit should be acquired to ensure 

permanent protection. 

2324. Acquire additional beachfront and upland properties (undeveloped and 

developed) within the nesting range of the Northern Recovery Unit and 

develop a plan to ensure long-term protection. 

Other nesting beaches that contribute to the historic nesting distribution 

of the Northern Recovery Unit should be acquired to ensure permanent 

protection. Examples include properties on Bald Head Island and 
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Sunset Beach, North Carolina; Bay Point, South Carolina; and Little St. 

Simons, Georgia. 

2325. Acquire additional beachfront and upland properties (undeveloped and 

developed) within the nesting range of the Northern Gulf of Mexico 

Recovery Unit and develop a plan to ensure long-term protection. 

Other nesting beaches that contribute to the historic nesting distribution 

of the Northern Gulf of Mexico Recovery Unit should be acquired to 

ensure permanent protection. Examples include the area from Little 

Lagoon Pass west to the end of the Fort Morgan Peninsula in Alabama, 

and properties adjacent to the St. Joseph Peninsula State Park in Gulf 

County, Florida. 

2326. Acquire storm-damaged nesting beachfront and upland properties on 

loggerhead nesting beaches. 

In the U.S., the Federal Emergency Management Agency (FEMA) has 

a Hazard Mitigation Grant Program that takes a percentage of Federal 

money spent on recovering from a disaster, like a hurricane or tropical 

storm, and uses it for projects that reduce future risk. By law, FEMA 

can contribute 15 or 20% of a disaster's cost to this grant program. 

How this money is used is determined by the state where the disaster 

occurs. States may use the money for the acquisition of property, 

usually referred to as buyouts. Although buyout projects are 75% 

funded by FEMA, they are administered by state and local 

communities. State and local communities should work together to 

identify coastal areas where buyouts are most appropriate, acquire title 

to these properties, and set them aside as sea turtle conservation areas. 

24. Minimize the effects of climate change on loggerhead habitats. 

241. Develop a model that describes the effects of sea level rise on loggerhead 

nesting beaches. 

Research has identified sea level rise as one of the most important potential 

impacts of global climate change. The best available science indicates that by 

2100 South Florida seas will be approximately 20 inches higher than they were 

in 1990 (IPCC 2001). An increase of this magnitude would drastically alter the 

coastline, changing the extent, quality, and location of sandy beaches available 

for loggerhead nesting. In the short term, even small changes in sea level could 

be expected to exacerbate beach erosion and increase artificial beach/dune 

alterations meant to protect coastal properties. 
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A model is needed to describe the potential effects of sea level rise on 

loggerhead nesting beaches. An example of such a model might be a three 

dimensional GIS model describing mean high water locations relative to 

permanent manmade structures such as buildings and roadways. An important 

prediction of the model would be short-term effects on the erosion classification 

of beaches. Erosion classifications predicted would be defined by beach 

changes that would bring about needs for beach nourishment, dune 

reconstruction, and coastal armoring. An ultimate goal of the model would be 

to predict the extent, suitability, and locations of loggerhead nesting beaches 

during the coming 2 to 3 loggerhead generation lengths (90 to 135 years). 

242. Implement measures and develop agreements to reduce atmospheric greenhouse 

gasses. 

Greenhouse gasses are a contributing factor to climate change, which can be 

expected to alter sea turtle nesting habitat (see action 241). Reduction of 

greenhouse gasses will require extensive domestic and international efforts. 

Cooperative efforts should be directed toward developing technologies that 

reduce carbon emissions. International agreements will likely be necessary to 

achieve this goal. 

25. Minimize effects of light pollution on hatchlings and nesting females. 

251. Develop, fully implement, and effectively enforce light management plans to 

address direct and indirect (e.g., sky glow, uplighting) artificial lighting on 

nesting beaches. 

2511. Implement and enforce lighting ordinances on lands under local 

government jurisdiction. 

Where lighting ordinances have been adopted and adequately enforced, 

hatchling disorientation has been managed at acceptable levels. All 

coastal counties and communities with nesting beaches should adopt 

and fully enforce ordinances from March through October in Brevard 

through Broward counties, Florida, and from May through October 

elsewhere. The State of Florida's Model Lighting Ordinance 

[http://myfwc.com/seaturtle] should be used as a template for 

developing new or revising existing lighting ordinances. In addition, 

Port Authorities should develop and enforce lighting management plans 

to ensure their direct and indirect lighting does not impact nesting and 

hatchling turtles on nearby beaches. 
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2512. Implement and enforce lighting management plans on all lands under 

state and Federal jurisdiction. 

Light management plans should be implemented and enforced on all 

state and Federal properties where the potential for lighting impacts to 

nesting and hatchling sea turtles exists. 

252. Evaluate the extent of hatchling disorientation on nesting beaches based on 

standardized surveys. 

Many lighting ordinance requirements do not become effective until 11 p.m., 

whereas over 30% of hatchling emergence occurs prior to this time. Hatchling 

disorientation problems should be evaluated on all beaches to ensure lighting 

management efforts are successful in eliminating sea turtle disorientation 

events. Standardized surveys for disorientation events should be developed or 

refined, comprehensively implemented, and findings should be used to identify 

problem areas where light management efforts should be targeted. 

253. Prosecute individuals or entities responsible for nesting female or hatchling 

disorientation under the Endangered Species Act or appropriate state laws. 

Law enforcement efforts should be focused where lighting ordinances are not 

being implemented or adequately enforced and where flagrant and repeated 

violations are not corrected. 

26. Conduct other activities to improve the quality of nesting habitat. 

261. Encourage the manual removal of manmade beach debris through regular 

coastal cleanup programs. 

Local governments and other responsible entities should organize individuals to 

participate in regular coastal cleanup programs, such as the Ocean 

Conservancy’s International Ocean Cleanup and others organized locally. 

262. Remove exotic vegetation harmful to loggerheads on and adjacent to nesting 

beaches. 

Removal of exotic vegetation that is ongoing at the St. Lucie Inlet State Park, 

Hobe Sound NWR, and Dry Tortugas National Park in Florida should continue. 

Other important nesting beaches where exotic vegetation is degrading nesting 

habitat should be identified and natural vegetation should be restored. In North 

and South Carolina, the efforts of the Carolina Beach Vitex Task Force, which 

was established to document and eradicate beach vitex from loggerhead nesting 

beaches, should be continued. 
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27. Inventory and protect neritic habitats used by loggerheads. 

Loggerheads are distributed throughout the neritic habitat of the continental shelf 

including nearshore, inshore, and estuarine waters of the Atlantic, Greater Caribbean, 

and Gulf of Mexico. Where the continental shelf does not exist (e.g., Greater 

Caribbean), the neritic habitat includes the marine environment to water depths less 

than 200 m. Loggerheads are opportunistic foragers that frequently feed around coral 

reefs, rocky places, and boat wrecks, and often enter bays, lagoons, and estuaries. 

Little information on habitat preference of specific age/size/sex classes is available. To 

effectively protect the species, habitat research should be conducted. A comprehensive 

strategy to identify habitat preference and use needs to be developed and implemented. 

Habitats requiring protection need to be identified and prioritized with respect to 

urgency of needing protection, and then appropriate action taken to ensure protection. 

271. Assess, categorize, and map neritic habitats used by loggerheads. 

Review and collate existing data and gather additional data where necessary to

locate and describe the type, quantity, and quality of available habitats 

throughout the neritic range. There have been a number of Federal and state 

initiatives to map habitat types in the marine environment. These databases 

need to be synthesized and integrated with respect to what is known about 

loggerhead habitat use (see action 29). 

Existing data need to be identified and synthesized using GIS based habitat 

maps. New initiatives to evaluate habitat use need to be supported to identify 

neritic habitat use by loggerheads (e.g., seasonal foraging locations, 

developmental and reproductive corridors, inter-nesting, courtship and mating). 

272. Assess human activities and their effects on neritic habitats used by 

loggerheads. 

Coastal development and associated changes in land utilization have led to 

severe degradation of habitat through contamination and/or loss of food sources 

in estuarine and marine waters. Declines in water quality resulting from 

industrial pollution, channel dredging and maintenance, harbor activities, farm 

runoff, and sewage disposal have rendered large water bodies marginally 

habitable. Appropriate minimum water quality standards should be researched, 

established, and enforced. Land use decisions and associated construction 

projects also should be carefully considered by regulatory and permitting 

agencies. 

2721. Assess the effects of bottom trawl and dredge fisheries on neritic 

habitats used by loggerheads. 

Bottom tending fishing gears can be destructive to a wide variety of 

habitats. Coral reefs, other live bottom habitats, and seagrass beds are 
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particularly vulnerable to destruction from these types of fishing gears. 

The potential loss of habitat from these activities should be evaluated 

and appropriate actions taken to ensure long-term protection of reefs 

and other habitats important to loggerheads. 

2722. Assess the effects of eutrophication on neritic habitats used by 

loggerheads. 

Excessive nutrient pollution in coastal waters can degrade loggerhead 

foraging habitats. The presence of harmful algal blooms and associated 

biotoxins may influence distribution and abundance of food resources. 

An assessment of the effects of eutrophication on loggerhead foraging 

habitat should be conducted. 

2723. Assess the effects of water management on neritic habitats used by 

loggerheads. 

 The timing, volume, and quality of freshwater inputs to coastal systems 

may have profound effects on loggerhead foraging habitats. Associated 

changes (e.g., salinity, nutrients, turbidity) may affect the distribution 

and abundance of loggerhead prey. 

2724. Assess the effects of oil and gas production activities on neritic habitats 

used by loggerheads. 

Oil exploration and development may disrupt the availability of food 

resources by smothering benthic organisms with sediments and drilling 

muds. Some sediments may contain heavy metals or other 

contaminants. The distribution and magnitude of oil production-related 

impacts and their effects on loggerhead populations should be assessed. 

2725. Assess the effects of channel dredging on neritic habitats used by 

loggerheads. 

Channel dredging projects may have greater impacts on habitat than the 

obvious mechanical destruction of the channel bottom. Channelization 

can alter natural current patterns, disrupt sediment transport, and 

suspended materials from dredging may severely damage adjacent 

corals and seagrasses. Additionally, disposal of dredged materials in 

offshore disposal sites usually smothers existing flora and fauna. 

Regulatory agencies should carefully consider the potential 

environmental consequences before permitting any new channel 

dredging projects or designating new offshore disposal sites. 
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2726. Assess the effects of salvage operations on neritic habitats used by 

loggerheads. 

Efforts to salvage valuable artifacts from shipwrecks commonly entail 

extensive excavation of the sea floor. This type of excavation may 

damage reefs, destroy benthic organisms, and increase local turbidity 

that may damage adjacent habitat. Efforts are needed to evaluate the 

effects of salvage operations on loggerhead habitats. 

2727. Assess the effects of other human activities on neritic habitats used by 

loggerheads. 

A host of other human activities, both direct and indirect, may affect 

neritic habitats that loggerheads use. Damage to seagrass, coral reef, 

and hardbottom habitats results from propeller and anchor damage. 

The widespread harvest of sand from neritic habitats for beach 

nourishment projects significantly alters large areas of neritic habitat 

and may damage adjacent habitats and their benthic organisms. 

Artificial reef placement has not been evaluated sufficiently to 

determine the effects of these programs on loggerheads. Upland and 

beachfront development and infrastructure can increase freshwater 

runoff, increase contaminant loads in such runoff, and alter nearshore 

habitats. The direct and indirect effects of these human activities on 

neritic habitats must be evaluated to understand their potential effects 

on loggerhead recovery. 

273. Develop and implement a strategy to protect and monitor neritic habitats used 

by loggerheads. 

Long-term protection of neritic habitats, extensively used by loggerheads, is 

essential to an effective recovery program for this species. A strategy for 

evaluating and prioritizing habitats requiring protection is needed. Integrating 

this task with efforts to map sea turtle distribution and movements in a GIS 

environment will be necessary. Key threats affecting the various habitats 

should be identified and prioritized as to their actual/potential effects on 

loggerhead recovery and conservation. Changes to existing or development of 

new local, state, or national legislation and/or regulations should be considered 

and implemented, as necessary to ensure the long-term health, viability, and 

protection of these essential neritic habitats. Marine protected areas should be 

explored as one of the tools to protect neritic habitats. 

28. Inventory and protect oceanic habitats used by loggerheads. 

The oceanic habitat is the vast open ocean environment where bottom depths exceed 

200 m. This habitat is characterized by bathymetric features (e.g., seamounts, banks) 

and dynamic oceanographic processes (e.g., fronts, convergence zones, eddies). The 
II-59

oceanic stage is primarily pelagic and occupies the upper 100 m of this habitat, 

although occasionally may be benthic in areas of seamounts and shallow banks. 

281. Assess, categorize, and map oceanic habitats used by loggerheads. 

Review and collate existing data and gather additional data where necessary to 

locate and describe the type, quantity, and quality of available habitats 

throughout the oceanic range. There have been a number of international and 

global initiatives to map sea turtle distributions in the marine environment based 

on telemetry research and fisheries bycatch studies. These databases need to be 

synthesized and integrated with respect to current knowledge of loggerhead 

habitat use (see action 29). 

Existing data need to be identified and synthesized using GIS based habitat 

maps. New initiatives to evaluate habitat use need to be supported to identify 

oceanic habitat use by loggerheads (e.g., juvenile foraging and developmental 

locations, adult foraging locations, seasonal distributions, migratory and 

reproductive corridors). 

282. Assess human activities and their effects on oceanic habitats used by 

loggerheads. 

Oceanic habitats important to loggerheads can be affected and severely 

degraded by human activities (e.g., oil and gas exploration and transportation, 

marine debris, marine pollution, toxic wastes). These environmental stressors 

can cause habitat alterations that are both structural and functional and 

frequently result in food web alterations and trophic shifts. Human activities 

that affect oceanic habitats extensively used by loggerheads should be carefully 

regulated by both national and international authorities. 

2821. Assess the effects of oil and gas activities on oceanic habitats used by 

loggerheads. 

Oil and gas activities may negatively impact sea turtle oceanic habitats 

primarily during exploration, production, and transport phases. Of 

particular concern are impacts of oil spills, disposal of toxic materials, 

and increased vessel traffic. Areas in which sea turtle distribution and 

seasonal use of marine habitats overlap with oil and gas development 

should be identified. MMS, appropriate international conventions, and 

the oil and gas industry should ensure that impacts to sea turtles are 

adequately addressed during planning of oil and gas development and 

that known sources of pollution and toxic waste disposal are eliminated. 

Additional precautions are needed to prevent oil spills. A team, with 

expertise in sea turtles, should be established to respond to oil spills. 
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2822. Assess the effects of marine debris on oceanic habitats used by 

loggerheads. 

Marine debris accumulates in oceanic habitats and can interfere with 

foraging activities of sea turtles. Quantities and types of marine debris 

should be monitored in oceanic habitats. Sources of the debris (e.g., 

onshore, military ships, cruise vessels, cargo ships) should be identified 

where possible so that appropriate agencies can be encouraged to 

address the problem. MARPOL and other conventions addressing 

marine debris should be strictly enforced. 

2823. Assess the effects of other pollutants on oceanic habitats used by 

loggerheads. 

A wide range of chemical pollutants from vessels, pipelines, terrestrial 

run-off, and airborne pollutants can affect oceanic habitats through 

changes in water quality or food availability. Research is needed to 

assess the risks from these chemicals. Areas in which loggerhead 

oceanic habitats overlap with areas at high risk of toxic spills should be 

identified. Contingency plans should be developed to clean up toxic 

areas. 

283. Develop and implement a strategy to protect and monitor oceanic habitats used 

by loggerheads. 

Long-term protection of oceanic habitats extensively used by loggerheads is 

essential to an effective recovery program for this species. A strategy for 

evaluating and prioritizing habitats requiring protection is needed. Integrating 

this task with efforts to map sea turtle distribution and movements in a GIS 

environment will be necessary. Key threats affecting the various habitats 

should be identified and prioritized as to their actual/potential effects on 

loggerhead recovery and conservation. Development of international 

agreements and designation of marine protected areas should be considered and 

implemented, as necessary, to ensure the long-term health, viability, and 

protection of these essential oceanic habitats. 

29. Develop and maintain a comprehensive GIS database of neritic and oceanic habitats 

(used by loggerheads) and human activities that impact these habitats. 

Based on the comprehensive GIS database of the distribution and abundance of 

loggerheads (see action 141), habitat requirements for loggerheads should be defined 

and a GIS database of all potential habitats should be developed. All human activities 

that can negatively impact these habitats should be included in the database so that 

maps of these activities can be overlaid on potential loggerhead habitats. These 

activities would include fisheries that degrade loggerhead habitat (e.g., bottom trawls), 

point sources of pollution (e.g., oil rigs), and shipping lanes. 
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3. Prevent overutilization for commercial, scientific, or educational purposes. 

Although the potential for overutilization of loggerheads for scientific and educational 

purposes is probably minimal, controls are necessary to insure that overutilization does not 

occur. However, legal harvest of loggerheads outside of U.S. waters remains substantial and 

continues to present a threat to the species (see Appendix 3). 

31. Work with foreign nations to quantify and eliminate commercial and subsistence 

harvest. 

The extent of legal harvest (commercial and subsistence) of loggerheads in the Atlantic, 

Caribbean, and Mediterranean needs to be quantified. Efforts should be undertaken to 

eliminate legal harvest through international agreements, bilateral efforts, capacity 

building, and education. 

32. Educate local communities in foreign nations on the benefits of sea turtle ecotourism as 

an alternative to harvest. 

Environmentally responsible ecotourism has been used by local communities to support 

sea turtle conservation activities, change human behavior to reduce threats from human 

activities, and provide economic benefits that filter throughout the community. In 

addition to the economic gains from the ecotourism activity itself (e.g., through 

donations for being taken out to see nesting sea turtles by a trained biologist), the local 

community as a whole has the potential to benefit economically through increased use 

of local businesses (e.g., hotels, shops, restaurants) by ecotourists. Efforts should 

continue to educate local communities in foreign nations on the potential benefits of 

environmentally responsible sea turtle ecotourism. 

33. Develop and implement guidelines for public turtle walks that minimize disturbance to 

loggerheads. 

Human disturbance of female loggerheads attempting to nest has been shown to cause 

turtles to shift nesting locations, delay egg deposition, and choose poor nesting sites. 

Organized, permitted loggerhead walks provide a unique opportunity for the public to 

view nesting loggerheads in a manner that minimizes the likelihood of impacts and 

raises their awareness about threats to sea turtle survival. In areas where human 

disturbance of nesting sea turtles is a concern, state resource agencies should encourage 

the establishment of organized, permitted loggerhead walks and develop new or 

maintain existing turtle walk guidelines for permittees conducting walks. This should 

help reduce the number of unsupervised individuals that go out on the beach at night to 

observe and inadvertently harass turtles. 
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34. Minimize take of wild turtles for captive display. 

The number of healthy wild loggerheads taken into captivity for educational display 

should be minimized by encouraging the display of non-releasable loggerheads and 

temporary loans of turtles from other captive facilities. 

 

4. Assess and manage disease and predation. 

41. Reduce nest predation. 

411. Reduce the annual rate of mammalian predation to at or below 10% of nests 

within each recovery unit using ecologically sound predator control programs. 

Both nonlethal and lethal predator control methods (e.g., nest screening, nest 

caging, humane trapping and removal) should be explored to determine which 

methods are the most ecologically sound and will work best for the target 

predators and the beach habitat under consideration. Individual problem 

animals can be targeted and removed without negatively affecting the local 

populations of native species. Populations of feral hogs should be eliminated if 

possible. All control measures should be implemented in accordance with 

ecologically sound and humane practices and applicable Federal and state laws. 

The mammalian predation rate target of 10% or below should be evaluated on 

all nests or on a random and representative sample of nests based on 

standardized or index surveys. 

412. Control fire ants on and adjacent to loggerhead nesting beaches. 

The red fire ant is native to Brazil and arrived in the U.S. in the 1940s. It now 

occurs in 10 U.S. states/territories where sea turtles nest and has been 

documented as a predator on sea turtle eggs and hatchlings. More recently, the 

red fire ant has moved into Mexico. Given the widespread distribution and 

continuing expansion of fire ants in coastal areas, their impact on sea turtle nests 

and hatchlings merits greater attention. Monitoring the impacts of fire ants on 

sea turtles should be undertaken to determine the extent of the problem. 

Impacts should be reduced using ecologically sound methods (e.g., use of 

ecologically appropriate baits) to control fire ant populations. In addition, 

efforts should be made to educate the public about the proper disposal of fish 

carcasses and other garbage that can promote fire ant infestation. Proper 

disposal would include off-beach burial and composting. 

42. Develop diagnostic health assessment protocols and establish baselines for wild 

populations. 

Standardized health assessment tools are needed to monitor the health of wild sea turtle 

populations. Once such tools are established, loggerhead populations could best be 
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monitored at a network of neritic and oceanic sampling sites that represents the 

geographic range as well as oceanic and neritic loggerhead life history stages. 

421. Develop a condition index to allow rapid evaluation of physiological status. 

A rapid method of estimating the physiological status/condition of wild 

loggerheads is needed. Methods by which this may be done include traditional 

mass/length condition indices, visual estimates of fat reserves in the axillary 

areas, and epibiotic load. 

422. Develop protocols for collecting, handling, and analyzing baseline blood 

chemistry parameters from wild loggerheads. 

Blood is a very fragile tissue and must be handled in a careful and consistent 

manner. Strict, standard protocols for collecting, handling, and analyzing blood 

chemical parameters must be developed. These standards are necessary for 

assessing and comparing life-stage, geographic, and seasonal differences in 

blood chemistries. Researchers must report how blood was collected and 

handled prior to analysis. 

423. Establish representative baseline blood chemistry parameters by sex, size class, 

season, and location. 

Baseline blood chemistry parameters can be used to assess the physiological 

status of loggerhead populations. However, to be able to use blood chemistry 

parameters, representative baselines need to be established for each life stage 

(oceanic vs. neritic), size class, sex, and season. Changes in habitat, 

temperature, and diet, as well as sex of the individual, may affect blood 

biochemical parameters. 

424. Establish representative baseline toxicological parameters by sex, size class, 

season, and habitat. 

Known toxins, such as heavy metals and halogenated hydrocarbons, should be 

monitored in loggerhead tissues particularly in habitats where such pollutants 

have been identified as potential threats. In addition, representative tissue 

samples, particularly of live turtles and gonads, should be archived for future 

analysis for formerly unrecognized toxins. Such tissues could be collected from 

fresh dead strandings or through laparoscopic biopsy on live turtles. 

425. Establish representative baseline levels of parasitic infection in wild turtles. 

Baseline levels of parasitic infections, including both external and major 

internal parasites, should be established. Principal external parasites include 

barnacles and leeches. Whereas external parasites can be observed on living 
II-64

and dead stranded turtles, detection of internal parasites (principally diagenean 

trematodes) requires necropsy of fresh dead animals. 

426. Establish representative baseline levels of bacterial, fungal, and viral infections 

in wild turtles. 

Baseline levels of bacterial, fungal, and viral infections in natural populations of 

loggerheads should be established. Causes of mass die-offs can only be 

evaluated if these baselines are available. This information would also allow 

rapid assessment of health of wild populations and evaluation of potential 

disease hazards from releasing captive turtles into the wild. 

43. Develop and implement a program to monitor loggerhead health at representative index 

in-water sites and index/standardized nesting beaches. 

A protocol should be established to assess and monitor parasite loads, infectious agents, 

fibropapillomatosis, and other diseases in loggerheads at index sites. In the case of 

fibropapillomatosis, the protocol will, by necessity, be limited to external examination 

and will include identifying numbers, locations, and sizes of tumors. The protocol 

should be incorporated into index site monitoring plans. If tumors are identified in a 

population, the assessment should be expanded to include collections of tumor tissue or 

blood samples after consultation with a veterinarian. In the case of other diseases, 

blood samples, swabs, and external examination should be used to detect parasites, 

microbial infection, and other disorders. 

44. Evaluate the effects of harmful algal blooms on loggerhead health. 

Toxic dinoflagellate blooms have adverse effects at several levels of marine trophic 

systems and could have potentially lethal effects on loggerheads. Perhaps of even 

greater importance are insidious sublethal effects, which may be becoming more 

widespread because of more frequent algal blooms in the coastal zone associated with 

increased eutrophication. As a result, there is a need to better evaluate the effects of 

harmful algal blooms on loggerhead health. 

45. Investigate the lethal and sublethal role of contaminants. 

Organochlorine contaminants, pesticides, and heavy metals have all been detected in 

sea turtles and sea turtle eggs, but their effects on sea turtles are relatively unknown. 

Researchers have also collected baseline information on heavy metal contamination in 

loggerhead populations at several locations throughout the southeast U.S. Heavy 

metals have been recorded in the tissues of stranded turtles and eggs. Phthalate esters, 

which are used in the manufacture of plastics and are known to cause mutations and 

cancer, have also been found in sea turtle eggs. Further studies are required to 

determine the precise causal relationships between these contaminants and health 

effects in sea turtles. 
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46. Develop and implement protocols for handling turtles to limit transfer of disease. 

Protocols for handling sea turtles should be developed so as to minimize the chance of 

transmitting diseases among captive animals and particularly from captive to wild 

turtles. 

47. Ensure the use of best practices in the rehabilitation, captive holding, transportation, 

and release of loggerheads. 

471. Develop and/or finalize protocols for the proper care and maintenance of 

loggerheads held in captivity. 

Loggerheads are maintained in captivity for rehabilitation, research, or 

educational display. Proper care will ensure that the maximum number of 

rehabilitated turtles is returned to the wild and that the minimum number is 

removed from the wild for research or education purposes. Appropriate 

research should be conducted to develop and/or improve captive holding 

criteria. Guidelines should be formalized that will serve as minimum 

requirements for sea turtles held in captivity in the U.S. These criteria should 

be published and required for any permit to hold sea turtles in captivity and 

should include appropriate annual inspections. Captive guidelines should 

include requirements relative to tank size, lighting, water quality, water 

quantity, foods and feeding, and veterinary care to ensure turtles are held in a 

humane manner. 

472. Develop protocols for transport and release of captive loggerheads. 

Protocols should be developed for the transporting and releasing turtles back 

into the wild in a manner that minimizes risk to the wild population. Protocols 

for releasing captive loggerheads into the marine environment must strive to 

ensure that disease transmission does not occur and that turtles are returned to 

the appropriate habitat. Objective criteria should be developed to determine 

whether captive-raised or long-term exhibit turtles are suitable for release into 

the wild (i.e., capable of performing normal foraging behavior and local 

movements or migrations), as well as to determine when rehabilitated turtles are 

sufficiently recovered to survive after release. If a captive animal is deemed 

suitable for release, protocols should be developed to determine how the 

potential for disease transmission can be avoided. Release locations should be 

chosen to maximize survivorship and consideration should include both habitat 

and seasonal factors. 

473. Develop a manual for the assessment and treatment of loggerhead diseases and 

injuries. 

Although some information is available on sea turtle rehabilitation (e.g., 

Campbell 1996, George 1997, Herbst 1999, Walsh 1999, Whitaker and Krum 
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1999), a more comprehensive manual on the diagnosis and treatment of disease 

problems associated with captive and wild sea turtles should be developed. This 

manual should include treatment for common injuries. This will improve 

rehabilitative success and captive care of research and display turtles. 

474. Develop and maintain a list of veterinarians qualified to diagnose and treat 

health problems in loggerheads. 

A national registry of veterinarians qualified to diagnose and treat sea turtles 

should be established and made available on appropriate agency websites. The 

list should be updated annually. 

48. Develop a strategy to recognize, respond to, and investigate mass strandings, disease 

episodes, or unusual mortality events. 

A formalized strategy is needed to facilitate rapid response to and investigation of 

unusual mortality events (mass strandings, disease episodes, or other extraordinary 

stranding events). The response strategy should outline key elements including 

determination of an unusual stranding event, establishment of regional rapid response 

teams, data and sample collection and analysis protocols, budgetary needs, and 

interagency coordination procedures. 

5. Ensure adequacy of regulatory mechanisms. 

51. Develop, implement, and enforce regulatory mechanisms to protect loggerheads and 

their habitats in the U.S. 

Loggerheads are exposed to and threatened by a plethora of anthropogenic activities. 

Impacts from these activities directly injure and kill loggerheads, disrupt necessary 

behaviors, and alter terrestrial and marine habitat used by the species. Appropriate 

regulatory control is the most effective means of minimizing the negative effects of 

these human activities. In order to promulgate and enforce effective regulations, the 

regulatory infrastructure must be in place to provide for the implementation of 

conservation regulations. 

511. Develop and implement Federal regulations to ensure long-term protection of 

loggerheads and their habitats post-delisting. 

Loggerheads are long-lived, late maturing species with little capacity to 

withstand extraneous mortality beyond natural levels. In addition, many of the 

coastal and all beach nesting habitats necessary for loggerhead survival are 

extremely vulnerable to anthropogenic perturbations. Consequently, 

loggerheads and their key habitats should remain protected even after delisting 

in order to avoid rapid population relapse. 
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512. Ensure full and active enforcement of Federal regulations designed to protect 

loggerheads. 

Adequate regulatory authority exists under the ESA to protect loggerheads; 

however, resources for both Federal and state enforcement are woefully lacking. 

Law enforcement activities critical to the recovery of loggerhead populations 

include the enforcement of fishery and marine conservation regulations and 

criminal investigations of poaching and harassment. Currently, Federal and 

state agencies lack the resources and personnel necessary to ensure compliance 

with fishery regulations. In some cases, officers do not have sufficient training 

to interpret complex fishery regulations. Additional resources are necessary to 

ensure officers are properly trained and personnel are sufficiently numerous to 

ensure compliance with fishery regulations. 

513. Develop and/or maintain, implement, and enforce state and local legislation to 

protect loggerheads and their habitats. 

State and local governments should regulate activities impacting sea turtles and 

their nesting habitat. For example, local lighting ordinances and coastal 

construction regulations should be developed and/or maintained to protect 

loggerheads. 

52. Ensure adequacy of regulatory mechanisms to protect loggerheads and their habitats in 

foreign nations. 

There is compelling evidence that post-hatchling loggerheads from U.S. nesting 

beaches spend several years as juveniles in a transatlantic developmental stage. In the 

northeastern Atlantic (Madeira, Azores, and Canary Islands), small juveniles are 

exploited for curios and food. Larger juveniles are common throughout The Bahamas 

where exploitation for food also is common. Populations in coastal waters of Cuba and 

Hispaniola undoubtedly include loggerheads originating from U.S. recovery units. 

Protecting loggerheads on U.S. nesting beaches and in U.S. waters, therefore, is not 

sufficient alone to ensure the continued existence of loggerheads. Cooperative 

international agreements and programs should be developed with the governments of 

The Bahamas, Cuba, Dominican Republic, Haiti, Panama, Portugal, Spain, and other 

countries where loggerheads originating from U.S. nesting populations occur. 

521. Assist foreign countries in developing national regulations to protect 

loggerheads and their habitats. 

Loggerheads are exposed to and threatened by a plethora of anthropogenic 

activities. Impacts from these activities directly injure and kill loggerheads, 

disrupt necessary behaviors, and alter terrestrial and marine habitat used by the 

species. Appropriate regulatory control is the most effective means of 

minimizing the negative effects of these human activities. In order to 
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promulgate and enforce effective regulations, the regulatory infrastructure must 

be in place to provide for the implementation of conservation regulations. 

522. Assist foreign countries with enforcement of national regulations to protect 

loggerheads. 

A necessary and integral component of any regulatory action is the capacity to 

enforce such regulations. As appropriate, the U.S. should help foreign nations 

build capacity for enforcement of conservation laws aimed at protecting 

loggerheads. 

53. Encourage development of and participation in multi-national agreements that facilitate 

conservation of loggerheads and their habitats. 

531. Encourage non-signatory nations of the western hemisphere to accede to the 

Inter-American Convention for the Conservation and Protection of Marine 

Turtles. 

The IAC holds significant promise for facilitating the conservation of 

loggerheads in the western hemisphere. However, to be fully effective, all 

nations hosting populations of loggerheads in the region must accede to the 

Convention. Of particular note are the non-signatory nations of Cuba and The 

Bahamas, which provide important foraging and migratory habitat for 

significant numbers of neritic loggerheads. Efforts should be continued and 

strengthened to encourage key non-signatory nations to accede to the IAC. 

532. Encourage non-signatory nations to accede to the Convention for the Protection 

and Development of the Marine Environment of the Wider Caribbean Region 

(Cartegena Convention), specifically the Protocol Concerning Specially 

Protected Areas and Wildlife in the Wider Caribbean (SPAW Protocol). 

Within the Wider Caribbean, the SPAW Protocol of the Cartagena Convention 

is an important diplomatic tool that can enhance loggerhead conservation and 

recovery in the region. The U.S. should expand its role in implementing the 

SPAW Protocol and explore opportunities to facilitate loggerhead recovery in 

the region through this avenue. Key non-signatory nations, notably The 

Bahamas, should be encouraged to accede to the Convention and relevant 

Protocols. 

533. Ensure the U.S. becomes a party to the United Nations Convention on the Law 

of the Sea and the Convention on Migratory Species. 

The United Nations Convention on the Law of the Sea contains treaty text 

specifically focused on conservation and management of living marine 

resources and protection of the marine environment. The U.S. is not currently a 

party to the Convention. Acceding to the Convention would provide the U.S. 
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with another multi-lateral instrument within which to facilitate recovery of the 

loggerhead across its range. 

The U.S. is not currently a party to the Convention on Migratory Species, 

although the U.S. has signed two sea turtle-specific Memoranda of 

Understanding negotiated under the auspices of the Convention. Acceding to 

Convention, and encouraging key nations within the range of the loggerhead to 

accede, could provide additional avenues for facilitating loggerhead recovery in 

the international arena. 

6. Minimize other causes of disturbance, harassment, injury, and mortality. 

61. Minimize impacts to sea turtles on nesting beaches. 

611. Eliminate nest management techniques that are not scientifically based. 

A management plan that outlines appropriate strategies and standardized 

protocols for protecting nests from both natural and manmade impacts is needed 

to ensure biologically sound management practices are employed. 

6111. Evaluate the effects of nest management activities on nest productivity, 

hatchling fitness, and sex ratios and develop scientifically based 

standardized protocols for nest management. 

The effects of nest management activities (e.g., nest relocation, nest 

screening) and natural factors (e.g., nest washovers) on nest 

productivity, hatchling fitness, and sex ratios should be evaluated. 

Tidal inundation can diminish hatching success depending on 

frequency, duration, and developmental stage of embryos. The extent 

to which eggs can tolerate tidal inundation should be better measured to 

enable development of guidelines for nest management relative to tidal 

threats. Similarly, the impacts of nest relocation under varying 

scenarios should be evaluated to determine whether nest relocation 

might be an appropriate management tool. Resource agencies should 

support research to evaluate the impacts of nest management activities 

and natural factors on nests and hatchlings. 

The effects of nest screening and caging on hatchling navigation and 

homing behavior should be evaluated as well. Irwin et al. (2004) found 

that galvanized wire mesh cages measurably alter the inclination angle 

and intensity of the magnetic field beneath them, but that the magnitude 

of field distortions decreased with distance below the cage. One 

hypothesis is that hatchlings imprint on magnetic features of the natal 

beach and use them as cues in homing to their natal beaches as adults. 

If such magnetic imprinting occurs, then the use of wire screens and 

cages poses a potential risk of disrupting magnetic navigation. 
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Based on the findings of research, recommendations for nest 

management should be developed. 

6112. Implement scientifically based standardized protocols for nest 

management. 

Implement the recommendations for nest management developed under 

6111. 

6113. Use the least manipulative method to protect nests. 

Until such time as a management plan for protecting nests is developed, 

the least manipulative method should be employed to protect nests. 

Because the incubation environment greatly influences the developing 

embryo, nest relocation can involve the transfer of eggs from an 

appropriate environment to an inappropriate one. As a general rule, 

nests should only be relocated if they are low enough on the beach to be 

washed daily by tides or if they are situated in well documented highrisk areas that routinely experience serious erosion and egg loss (e.g., 

nests laid near river mouths or beneath eroding sea walls). 

Natural events, like storms, that accelerate beach erosion and accretion 

can sometimes reduce hatching success in existing nests. While 

damage from storm events can be severe, it is difficult to predict the 

precise areas where the storm is most likely to inflict damage. Because 

of the negative effects of relocating eggs and the unpredictability of 

storm events, nests should not be moved out of areas threatened by 

storms. 

Nests should not be relocated in areas where heavy foot traffic, lighting 

problems, or beach cleaning are a concern. Foot traffic generally is not 

a problem for nests, but depending on the nesting substrate, pedestrian 

traffic over nests near the time of emergence can cause the nests to 

collapse and result in hatchling mortality. Therefore, in areas where 

foot traffic is heavy, nests can be marked so pedestrians can avoid 

them. If a nest is made near a light that may misorient the hatchlings, 

efforts should focus on getting the light turned off or shielded (if 

protection is necessary, the nest should be caged). If nests are 

deposited on beaches that are periodically raked with mechanical 

equipment, beach raking should be discontinued or the nests should be 

marked clearly so they can be avoided by the beach cleaners. 
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6114. Discontinue the use of hatcheries as a nest management technique. 

 

Relocation of sea turtle nests to hatcheries located higher on the beach 

was once a common practice throughout the southeast U.S. to mitigate 

the effects of naturally occurring events, such as erosion and vegetation 

encroachment, predation, and a variety of human-induced factors. In 

some areas, the extent and type of coastal development have resulted in 

significant light pollution problems. As a result, a few hatcheries are 

still used to protect hatchlings from disorientation. However, relocating 

nests into hatcheries concentrates eggs in an area and makes them more 

susceptible to catastrophic events and predation from both land and 

marine predators. Therefore, in areas where hatcheries are still being 

used to protect nests and hatchlings from light pollution, management 

efforts should be shifted to eliminate the lighting problems and phase 

out the use of hatcheries. At Cape Romain NWR in South Carolina, 

hatcheries are being used as a last resort in response to severe erosion. 

In this case, the conservation benefits (i.e., embryo survivorship) are 

believed to outweigh the potential conservation risks (e.g., hatchling 

predation). Given these circumstances, the use of hatcheries at Cape 

Romain NWR is currently considered appropriate until sufficient 

habitat for successful incubation is available. Continued use of 

hatcheries on the refuge should be based on periodic quantitative 

assessments of their effectiveness as a management tool. 

 

612. Minimize and control vehicular traffic on nesting beaches. 

Driving exists on some Florida, Georgia, North Carolina, Virginia, and Texas 

beaches, including National Seashores. The effects of vehicular traffic on 

nesting activities should be evaluated, and a plan should be developed to 

minimize the effects of beach driving on nesting beaches. 

6121. Prohibit nighttime driving on beaches during the loggerhead nesting 

season. 

Vehicles on the beach have the greatest potential to come into contact 

with nesting females and emerging hatchlings at night. In areas where 

beach driving is still allowed, nighttime vehicle use should be limited to 

essential vehicles (e.g., emergency or permitted research vehicles) only. 

When essential vehicles are allowed on the beach at night during the 

sea turtle nesting season, their potential for harming turtles should be 

minimized by driving at speeds of 5 miles per hour or less (except when 

higher speeds are necessary for law enforcement, human safety, or 

medical emergencies), and by driving seaward of the wrack or debris 

line or just above it during high tide conditions. In addition, regardless 

of the time of year, vehicles or equipment driven or used on the beach 

should be equal to or less than 10 pounds per square inch (psi) based on 
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ground loading characteristics (e.g., all terrain vehicles) to minimize the 

potential for sand compaction. 

6122. Ensure that the linear kilometers of nesting beach where vehicular 

traffic is permitted does not increase above 2006 levels. 

In the U.S., public vehicular traffic is still permitted on beaches in 

North Carolina, Georgia, Florida, and Texas. Efforts should be made to 

ensure that the linear extent of beach driving does not increase above 

2006 levels (see below and in Section H.1. – Beach Vehicular Driving). 

In North Carolina, public driving is allowed on the entire stretch of 

beach running north of the Town of Corolla to the Virginia state line 

(including the Currituck NWR and the Currituck Banks National 

Estuarine Research Reserve) due to the presence of beach homes in that 

area and the lack of roads to access them. Driving is also allowed on 

Cape Hatteras National Seashore, Cape Lookout National Seashore, 

and Fort Fisher State Recreation Area. 

In Georgia, as a result of beach driving concerns on Cumberland Island 

National Seashore and other barriers islands, the GDNR adopted a 

regulation that only authorizes beach driving by individuals who are 

engaged in bona fide educational activities or scientific research, are a 

legal resident on the island, are involved in beach maintenance or 

security, and/or own or have an interest in real property on the island in 

question. 

In 1985, the Florida Legislature severely restricted vehicular driving on 

Florida’s beaches, except that which is necessary for cleanup, repair, or 

public safety. However, this legislation allowed an exception for six 

counties to continue allowing vehicular access on coastal beaches due 

to the availability of less than 50% of its peak user demand for offbeach parking. The counties affected by this exception were Volusia, 

St. Johns, Duval, Gulf, Nassau, and Flagler counties, as well as limited 

vehicular access on Walton County beaches for boat launching. 

However, Flagler County passed an ordinance in 2004 that now bans 

public beach driving. 

In Texas, driving occurs on nearly the entire Texas coast (as per the 

Texas Open Beaches Act). However, a highly developed section of 

South Padre Island is closed to beach driving, and closed beaches at 

Padre Island National Seashore, San Jose Island, Matagorda Island, and 

Matagorda Peninsula (south of the Colorado River) are only open to 

driving by agency personnel, land owners, and/or approved individuals 

(such as researchers). 
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Public and/or mission-related driving is also authorized on a few 

military installations (e.g., Naval Station Mayport, Tyndall Air Force 

Base, and Eglin Air Force Base in Florida; Camp Lejeune Marine 

Corps Base in North Carolina). 

6123. Manage daytime driving to minimize impacts to loggerheads. 

In addition to prohibiting nighttime driving of non-essential vehicles on 

the beach, other measures should be implemented to minimize the 

potential for impacts to sea turtles. Examples of minimization 

measures include the designation and enforcement of no-driving zones 

in areas where the greatest concentration of nests are typically located 

(e.g., conservation zones near the dunes), monitoring and marking of all 

sea turtle nests for avoidance, and developing and implementing a 

vehicle rut removal program seaward of nests during periods when 

hatchlings are expected to emerge. 

613. Strengthen existing regulations or promulgate new regulations to manage 

mechanical beach cleaning on nesting beaches. 

Special protective measures should be required during the nesting season to 

ensure that mechanized beach cleaning equipment does not harm sea turtles or 

sea turtle nests. In higher density nesting areas where marking every nest is not 

feasible, non-mechanical methods of cleaning, such as hand raking, should be 

employed. To protect nests, the following conditions should be required for 

beach cleaning activities: (1) cleaning should only occur seaward of the high 

tide line and only during daylight hours, (2) cleaning should only occur after an 

authorized sea turtle permit holder has surveyed the beach for nests, (3) all nests 

within 3.1 m (10 feet) of the high tide line should be marked by the sea turtle 

permit holder, (4) only equipment with less than 10-psi tire pressure should 

operate on the beach, (5) cleaning equipment should not penetrate more than 5.1 

cm (2 inches) into the beach surface, (6) all material collected should be 

removed from the beach, and (7) cleaning equipment should stay at least 3.1 m 

(10 feet) from salt-tolerant vegetation. 

The wrack line runs the length of the beach and marks the place where the tide 

reaches its highest point. Material in the wrack is an important component of 

beach stabilization and dune building. It acts in much the same way as a sand 

fence -- it slows wind velocity and causes sand to be deposited. When sand is 

blown over the wrack line by the wind, it falls out of the air and begins to 

accumulate around the wrack line. Efforts should be undertaken to educate the 

public about the benefits of allowing wrack material to remain on the beach. 
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614. Minimize harassment of nesting females and hatchlings. 

Resident and visitor use of nesting beaches can adversely affect nesting sea 

turtles, incubating egg clutches, and hatchlings. Intentional and unintentional 

disturbance and harassment of nesting females and hatchlings is an increasing 

problem on many beaches. Problem areas where repeated incidents of turtle 

harassment have been reported should be identified, and law enforcement 

efforts should be focused there. 

 

6141. Evaluate the extent and effects of harassment of nesting females and 

hatchlings and develop management recommendations. 

The most serious threat caused by human presence on the beach is the 

disturbance of nesting females and hatchlings. This disturbance can 

cause turtles to abort nesting attempts, shift their nesting beaches, and 

select poor nesting sites. Campfires and flashlight use by pedestrians 

on nesting beaches at night can disorient hatchlings and deter nesting 

females. Efforts should be undertaken to determine the extent of these 

impacts on sea turtles, and protocols should be developed to minimize 

their effects. 

6142. Conduct public education campaigns to minimize harassment of nesting 

females and hatchlings. 

Resident and visitor use of nesting beaches can adversely affect nesting 

sea turtles and hatchlings. The most serious threat caused by human 

presence on the beach is the disturbance of nesting females. 

Disturbance of nesting females can cause them to leave the beach 

without finishing nesting and thus delay egg laying, shift their nesting 

beaches, and select poor nesting sites. Hatchlings rely on a store of 

energy and nutrients within their retained yolk sac to make their way 

from the nest to their offshore developmental habitat. Any delays they 

encounter on the beach by pedestrians may impair their ability to 

migrate offshore. Beachgoers should be informed through 

presentations and educational materials about the potential impacts to 

sea turtles from pedestrians on the beach and how to avoid frightening 

or disorientating any nesting and hatchling turtles encountered. In 

addition, signage at access points to the beach is recommended to 

further inform residents and visitors about proper nesting beach 

etiquette. 

6143. Increase the number of interpretive turtle walks to meet demand and 

minimize overall disturbance to nesting females and hatchlings. 

In the U.S., numerous state-permitted organizations conduct organized 

turtle walks to allow the public to view the nesting process. Thousands 
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of coastal visitors and local residents attend these organized turtle 

watches each year; however, thousands more are turned away due to 

the limited number of walks available. As a result, numerous 

unsupervised individuals who were unable to get into a turtle walk 

often try to find turtles by themselves and inadvertently end up 

harassing them. Interpretive turtle walks also are a mechanism for 

garnering support for sea turtle conservation through education and 

should be expanded to accommodate the high public demand for 

participation. 

6144. Enforce laws to minimize harassment of nesting females and 

hatchlings. 

Intentional and unintentional disturbance and harassment of nesting 

turtles and hatchlings is an increasing problem on many beaches. 

Problem areas should be identified and law enforcement efforts should 

be focused in these areas to deter harassment of nesting turtles and 

hatchlings. 

615. Develop and enforce guidelines for special events on the beach to minimize 

impacts on nesting females, nests, and hatchlings. 

A wide variety of special events (e.g., volleyball tournaments, concerts) take 

place on the beach. Some of these events considerably increase the number of 

people and equipment in a given area. Many events are scheduled outside of the 

sea turtle nesting period, but some do occur during the nesting season. State 

resource agencies and local governments should develop and enforce guidelines 

for special events that will occur during the nesting season to ensure there will 

be no direct or indirect impacts on nesting turtles, nests, and emerging 

hatchlings. 

616. Minimize the impacts of military activities on nesting females, nests, and 

hatchlings. 

Several military bases in the southeast U.S. (e.g., Camp Lejeune Marine Corps 

Base, Naval Station Mayport, Cape Canaveral Air Force Station, Patrick Air 

Force Base, Tyndall Air Force Base, Eglin Air Force Base) have sea turtle 

nesting beaches. Activities on or near these beaches include a variety of 

military training activities, rocket launches, etc. During ESA section 7 

consultations with the military on activities that may affect sea turtles, FWS 

should ensure the inclusion of appropriate reasonable and prudent measures to 

minimize incidental take of nesting females, nests, and hatchlings. 
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617. Ensure oil spills affecting nesting beaches do not impact nesting females, nests, 

and hatchlings. 

Oil spills in the vicinity of nesting beaches just prior to or during the sea turtle 

nesting season could place nesting females, incubating egg clutches, and 

hatchlings at significant risk. A risk assessment and response plans are needed 

to ensure sea turtles are protected from nearshore spills. 

6171. Conduct a risk management assessment of oil spill effects on nesting 

beaches. 

A risk assessment of oil spill effects on sea turtle nesting beaches 

should be undertaken. The objectives of the risk assessment should 

focus on providing an independent assessment of the overall risks of oil 

pollution to nesting beaches, identifying key locations at risk, and 

determining the main causes of these risks. Spill scenarios should be 

modeled for ships in transit, ships in port waters, ships at berth, transfer 

operations at sea and at berth, and all offshore facilities. The risk 

model should be used to calculate risks based on historical accident 

rates from around the world. Based on the results of the risk 

assessment, recommendations should be made to protect key nesting 

beaches (e.g., by ensuring that oil ship traffic does not travel near these 

nesting beaches during the nesting season if appropriate). 

6172. Ensure that oil spill response plans exist and adequately protect all 

nesting beaches. 

A response plan should be developed and implemented to ensure 

appropriate actions are taken to minimize the likelihood of nesting 

females, hatchlings, and eggs coming into contact with oil when a spill 

occurs on or near a nesting beach. This plan should include 

recommendations, such as those mentioned in Oil and Sea Turtles: 

Biology, Planning, and Response (Shigenaka 2003), that address 

response considerations for nests that have been deposited on the beach 

prior to the oil spill, hatchlings emerging from nests in areas where oil 

is present on the beach and/or in the adjacent offshore area, and females 

attempting to emerge onto the oiled beach to nest. 

618. Minimize the impacts of coastal construction activities on nesting females, 

nests, and hatchlings. 

A variety of coastal construction activities (e.g., construction, repair, and 

maintenance of upland structures and dune crossovers; installation of utility 

cables; installation and repair of public infrastructure such as coastal highways 

and emergency evacuation routes; dune restoration; and vehicular traffic and 

lighting associated with any of these activities) may affect sea turtles. These 
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activities may alter nesting habitat and harm nesting females, nests, and 

hatchlings. 

6181. Conduct all non-emergency coastal construction activities outside the 

main portion of the nesting season to eliminate impacts on nesting 

females, nests, and hatchlings. 

Direct impacts to sea turtles from non-emergency construction 

activities (e.g., dune crossovers, groins, etc.) should be avoided by 

conducting these activities outside of the main portion of the nesting 

season. The main portion of the loggerhead nesting season is from May 

1 to October 31 (other sea turtle species may broaden this nesting 

period). 

6182. Strengthen existing regulations or promulgate new regulations to 

minimize impacts from emergency construction activities during the 

nesting season on nesting females, nests, and hatchlings. 

Guidelines to minimize impacts from emergency construction activities 

that are allowed to take place during the nesting season should be 

developed and implemented by the state and local governments. 

Guidelines should include requirements such as (1) conduct sea turtle 

nesting surveys and mark all detected nests for avoidance; (2) conduct 

work from the upland portion of the property if practicable; (3) ensure 

heavy equipment (e.g., tracked or wheeled motorized machinery, such 

as bobcats, bulldozers, front-end loaders, etc.) is not operated on the 

beach if a reasonable upland alternative exists; (4) ensure heavy 

equipment that must be operated on the beach accesses the site as close 

to the construction site as possible and that a marked path, no wider 

than 15.3 m (50.0 ft) and running perpendicular to the beach from the 

dune to the high tide line, is used for beach access; (5) ensure that once 

on the beach equipment is only moved to and from the construction site 

along the wetted portion of the beach (i.e., below the previous high tide 

line); and (6) ensure that heavy equipment or construction materials are 

not stored on the nesting beach. 

6183. Develop and implement ordinances to eliminate the effects of 

stormwater outfalls and swimming pool drainage on nesting females, 

nests, and hatchlings. 

Stormwater runoff on nesting beaches is believed to be widespread in 

coastal communities; however, a comprehensive inventory of 

stormwater outfalls has not been compiled. Coastal communities 

should assess this threat and develop and implement actions to address 

the problem on sea turtle nesting beaches. 
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619. Ensure that law enforcement activities eliminate poaching of eggs and nesting 

females. 

Although not a significant cause of nest loss in the U.S., poaching is 

occasionally a local problem. In other countries where loggerheads from 

Northwest Atlantic recovery units occur, illegal take has been reported but not 

quantified. Problem areas should be identified, and law enforcement efforts 

should be focused there to eliminate poaching. 

62. Minimize loggerhead bycatch in domestic fisheries using a gear-based strategy. 

Loggerheads are incidentally captured in many domestic commercial fisheries. The 

principal fisheries known to incidentally capture turtles are those employing trawls, 

gillnets, longlines, pots/traps, pound nets, hook and line, dredges, and seines. Captures 

of loggerheads in domestic commercial fisheries number in the tens of thousands 

annually; a substantial number of these turtles die. Reducing bycatch in these fisheries 

will require an integrated approach including measures such as gear modifications, 

changes to fishing practices, effort reduction, and time/area closures. 

Current approaches to managing bycatch of loggerheads in domestic commercial 

fisheries have ranged from reasonably broad (e.g., TED requirements for shrimp trawls 

in the southeast U.S.) to fragmented and local and often are target species-based (e.g., 

prohibitions of certain gillnets in limited areas of Pamlico Sound). However, even in 

the case of TED requirements, fishers deploying the same or similar gear north of Cape 

Charles, Virginia, are not required to use TEDs, even though loggerheads are 

seasonally abundant there. A shift in approach to one that is primarily gear-based, and 

considers the effects of fishing gear on loggerheads throughout their range, will focus 

bycatch reduction efforts where they are most needed and will result in more 

comprehensive and effective solutions. 

621. Minimize loggerhead bycatch in domestic commercial gillnet fisheries. 

A comprehensive characterization of all gillnet fisheries in domestic waters 

should be completed to identify fishing areas, effort, gear characteristics, fishing 

practices, loggerhead bycatch data, and relevant regulations. 

 

6211. Describe and characterize domestic commercial gillnet fisheries. 

The geographic and temporal distribution of gillnet fisheries should be 

documented along the U.S. Atlantic coast, as well as in other countries 

where loggerheads from Northwest Atlantic recovery units occur. 

Details as to mesh sizes, target species, etc. should be included. 
II-79

6212. Integrate information gathered in 6211 with turtle distribution data 

(linked to actions 141 and 29). 

A comprehensive GIS integrating domestic commercial gillnet fishery 

and turtle data should be developed to assist in analyzing fishery 

interactions and developing effective solutions to minimize bycatch of 

loggerheads in this fishery. 

6213. Implement observer programs to determine bycatch levels and identify 

key characteristics of domestic commercial gillnet fisheries that affect 

bycatch levels. 

Direct and/or alternative platform observer programs should be 

enhanced or developed, and implemented through a prioritized 

approach, to measure bycatch in gillnet fisheries. Bycatch data should 

be examined to determine characteristics of gillnet gear and fishing 

practices that may contribute to increased bycatch levels. 

6214. Implement measures to minimize bycatch in large mesh gillnet 

fisheries. 

Large mesh gillnets used in areas where sea turtles are abundant can 

result in high sea turtle bycatch. Rangewide restrictions, with temporal 

components if appropriate, should be implemented. 

6215. Implement measures to minimize bycatch in other gillnet fisheries as 

appropriate. 

Appropriate actions should be taken to implement restrictions to reduce 

loggerhead bycatch in gillnet fisheries through gear modifications, 

time/area closures, and/or changes in fishing practices. 

622. Minimize loggerhead bycatch in domestic shrimp trawl fisheries. 

A comprehensive characterization of commercial shrimp trawl fisheries in 

domestic waters should be completed to identify fishing areas, effort, gear 

characteristics, fishing practices, loggerhead bycatch data, and relevant 

regulations. 

6221. Describe and characterize domestic commercial and recreational shrimp 

trawl fisheries. 

A full characterization of distribution, seasonality, and effort (trawl 

effort and number of vessels) would improve our understanding of the 

threats posed by the domestic commercial and recreational shrimp trawl 
II-80

fishery. These data should be developed in a spatially referenced 

format to allow for integration into the GIS described in 6222. 

6222. Integrate information gathered in 6221 with turtle distribution data 

(linked to actions 141 and 29). 

A comprehensive GIS integrating domestic commercial and 

recreational shrimp trawl fishery distribution, gear characteristics, effort 

data, turtle distribution and bycatch data, and oceanographic 

information should be developed and periodically updated to assist in 

analyzing shrimp fishery interactions and developing effective solutions 

to minimize bycatch of loggerheads in this fishery. 

6223. Increase observer coverage to a statistically robust level to adequately 

monitor bycatch levels in the domestic commercial shrimp fishery and 

modify TED regulations if necessary. 

To gauge success of conservation measures that have been 

implemented, observer programs should be maintained to ensure 

statistically valid coverage across the range of the domestic commercial 

shrimp trawl fishery. Loggerhead bycatch data collected through 

observer programs should be summarized and reported quarterly to 

monitor bycatch levels and to evaluate conservation measures. 

Comprehensive annual analyses of observer data are needed in a timely 

manner to ensure loggerhead bycatch is minimized. 

6224. Promulgate regulations to require TEDs in all trynets in the domestic 

commercial shrimp fishery. 

Observer data indicate that loggerheads are regularly captured in trynets 

smaller than the minimum size required to have TEDs (greater than 12 

ft headrope length). Tow time requirements for exempted trynets are 

not currently enforceable. Regulations requiring TEDs in all trynets are 

needed to reduce loggerhead bycatch in this gear type. 

6225. Continue efforts to educate domestic commercial shrimp fishers on the 

proper installation and use of larger-opening TEDs. 

Continued outreach efforts to provide workshops and educational 

materials to the shrimp fishing community are needed to ensure that the 

required larger opening TEDs are constructed, installed, and used 

properly. Outreach efforts, including conducting workshops and 

providing educational materials in multiple languages as needed in the 

southeast U.S., should be continued and enhanced. 
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6226. Investigate the physiological effects of multiple captures and exclusions 

of loggerheads in domestic commercial shrimp trawls equipped with 

TEDs. 

Despite comprehensive TED regulations, serious concerns remain 

regarding the repeated capture and exclusion of individual loggerheads 

on densely fished shrimping grounds. The cumulative effects of 

repeated forced submergence while navigating the trawl and TED 

warrant focused evaluation. The physiological effects, measured 

through blood chemistry, should be evaluated under semi-controlled 

conditions in the wild. Videography should be employed to evaluate 

behavior and escapement rates of individuals repeatedly exposed to 

shrimp trawls under commercial conditions. 

6227. Monitor and reduce effort in the domestic commercial shrimp trawl 

fishery to minimize loggerhead bycatch. 

Despite the implementation of larger TED openings, estimated bycatch 

of loggerheads in the southeast U.S. shrimp fishery remains 

extraordinarily high due to the enormous total effort (assuming 97% 

turtle exclusion rate, which may be an overestimate). Overcapacity in 

the shrimp fishery should be addressed through a limited entry permit 

system, effort reduction through time/area closures, or other approaches 

that reduce total trawl hours. 

6228. Investigate turtle exclusion rates for soft TEDs under field conditions 

using videography. 

The primary method for testing the efficiency of TEDs is the NMFS 

Small Turtle TED Testing Protocol. NMFS personnel release captiveraised sea turtles in shrimp nets fitted with TEDs under controlled 

conditions in the clear waters of the Gulf of Mexico. Divers film each 

turtle as it is released into the net and record turtle escape times. 

Although the NMFS Small Turtle TED Testing Protocol has been 

effective in identifying problems with some TED designs, there have 

been several criticisms of the protocol including: (1) captive raised 

turtles used for testing behave differently than wild turtles, (2) the 

captive turtles used in testing are uniformly small in size and do not 

represent the range of sizes encountered by trawlers, and (3) TED 

designs are tested under ideal conditions with gear specialists adjusting 

nets for optimum performance. As a result of these concerns, NMFS, 

in cooperation with the Georgia Marine Extension Service, has 

developed an alternative method for TED testing. A net with two 

cameras attached at key locations on the net (trawl body and TED) 

allows researchers to monitor the net while trawling for wild turtles. 

TED efficiency is monitored with video monitors on the boat. This 
II-82

method is known as the “wild turtle” testing protocol and eliminates 

concerns over the behavior and size of captive turtles. Since 2002, 

candidate TEDs and modifications to existing TEDs have been tested 

using both the small turtle and wild turtle testing protocols. 

The original soft TED design did not pass the NMFS Small Turtle TED 

Testing Protocol because of high turtle capture rates. A modified soft 

TED design, known as the Parker Soft TED, subsequently passed the 

protocol and was certified as a NMFS approved TED design. The soft 

TED design has shown a history of problems during development, 

including inconsistent installation by net shops and documented 

deformation of the mesh ramp with repeated use. Stretching of the soft 

TED meshes form a bag that will trap and drown turtles. Because there 

is continued concern that the mesh ramp will stretch with repeated use, 

the efficiency of the Parker Soft TED should be further tested using the 

wild turtle testing protocol and the small turtle protocol with a net that 

has been fished under commercial conditions over a period of time. 

6229. Implement statistically valid observer programs to determine bycatch 

levels in domestic commercial skimmer trawl fisheries and require 

TEDs if necessary. 

The skimmer trawl fishery is suspected as having high interaction rates 

with loggerheads. Two areas are of particular concern, North Carolina 

and Louisiana. An observer program to estimate loggerhead bycatch in 

skimmer trawls should be developed and implemented. TEDs may be 

required based on this evaluation. 

623. Minimize loggerhead bycatch in domestic commercial non-shrimp trawl 

fisheries. 

A comprehensive characterization of commercial non-shrimp trawl fisheries in 

domestic waters should be completed to identify fishing areas, effort, gear 

characteristics, fishing practices, loggerhead bycatch data, and relevant 

regulations. 

6231. Describe and characterize domestic commercial non-shrimp trawl 

fisheries. 

A full characterization of distribution, gear and fishing characteristics, 

seasonality, and effort (trawl effort and number of vessels) would 

improve our understanding of the threats posed by the domestic 

commercial non-shrimp trawl fishery. These data should be developed 

in a spatially referenced format to allow for integration into the GIS 

described in 6232. 
II-83

6232. Integrate information gathered in 6231 with turtle distribution data 

(linked to actions 141 and 29). 

A comprehensive GIS integrating domestic commercial non-shrimp 

trawl fishery distribution and effort data, turtle distribution and bycatch 

data, and oceanographic information should be developed and 

periodically updated to assist in analyzing fishery interactions and 

developing effective solutions to minimize bycatch of loggerheads in 

this gear type. 

6233. Implement statistically valid observer programs to determine bycatch 

levels in domestic commercial non-shrimp trawl fisheries. 

Observer programs should be maintained (or implemented if they do 

not exist) and improved to ensure statistically valid coverage across the 

range of domestic non-shrimp trawl fisheries. Loggerhead bycatch data 

collected through observer programs should be summarized and 

reported in a timely manner to evaluate conservation measures that 

have been undertaken. Comprehensive annual analyses of observer 

data are needed in a timely manner to ensure loggerhead bycatch is 

minimized in non-shrimp trawl fisheries. 

6234. Implement seasonal large-opening TED regulations for domestic 

commercial non-shrimp trawl fisheries operating from Cape Hatteras, 

North Carolina, north to Cape Cod, Massachusetts. 

There are ample data documenting the seasonal distribution of 

loggerheads north of Cape Hatteras, North Carolina (current northern 

extent of domestic requirements for TEDs) and demonstrating the 

overlap of loggerheads with non-shrimp trawl fishing effort. The 

neritic habitats between Cape Hatteras, North Carolina, and Cape Cod, 

Massachusetts, provide important seasonal migratory and foraging 

habitats for both juvenile and adult loggerheads. To reduce bycatch, 

regulations should be promulgated to require large-opening TEDs 

seasonally from Cape Hatteras, North Carolina, to Cape Cod, 

Massachusetts. 

6235. Promulgate regulations to require TEDs in domestic commercial flynet 

trawl fisheries. 

The flynet trawl fishery operates primarily in neritic waters off the midAtlantic coast, an area that provides important habitat for juvenile and 

adult loggerheads. Sea turtles have been documented and are not 

uncommon as bycatch in this fishery. A flynet TED has been 

developed and tested in the fishery, and regulations should be 

promulgated to require TED use to minimize loggerhead bycatch. 
II-84

6236. Promulgate regulations to require large-opening TEDs in all domestic 

commercial non-shrimp trawl fisheries south of Cape Hatteras, North 

Carolina. 

There are ample data documenting the seasonal distribution of 

loggerheads south of Cape Hatteras, North Carolina, and demonstrating 

the overlap of loggerheads with non-shrimp trawl fishing effort in this 

area. The neritic habitats south of Cape Hatteras, North Carolina, 

provide critically important, year-round migratory and foraging habitats 

for both juvenile and adult loggerheads. To reduce loggerhead bycatch, 

regulations should be promulgated to require large-opening TEDs yearround in non-shrimp trawl fisheries operating south of Cape Hatteras, 

North Carolina, through Texas. 

624. Minimize loggerhead bycatch in domestic commercial pelagic and demersal 

longline fisheries. 

6241. Describe and characterize domestic commercial pelagic and demersal 

longline fisheries. 

A comprehensive characterization of all U.S. longline fisheries should 

be completed to identify fishing areas, effort, gear characteristics, 

fishing practices, loggerhead bycatch data, and relevant regulations. 

6242. Integrate information gathered in 6241 with turtle distribution data 

(linked to actions 141 and 29). 

A comprehensive GIS integrating domestic commercial pelagic and 

demersal longline fishery distribution and effort data, turtle distribution 

and bycatch data, and oceanographic information should be developed 

and periodically updated to assist in analyzing fishery interactions and 

developing effective solutions to minimize bycatch of loggerheads in 

this gear type. 

6243. Maintain and/or increase observer coverage to a statistically robust 

level to adequately monitor bycatch levels in domestic commercial 

pelagic and demersal longline fisheries. 

Observer programs should be maintained to ensure statistically valid 

coverage over the range of the surface and demersal longline fishery. 

Loggerhead bycatch data collected through observer programs should 

be summarized, reported, and reviewed quarterly to monitor bycatch 

levels, gauge success of conservation measures that have been 

implemented, and provide additional information on key characteristics 

of longline fisheries that affect loggerhead bycatch levels. 
II-85

6244. Continue to conduct focused experiments on domestic commercial 

longline gear and fishing practices to minimize loggerhead interactions 

and secondarily to minimize post-interaction mortality. 

Significant and important progress has been made in developing gear 

modifications that reduce loggerhead bycatch in swordfish directed 

fisheries. The most promising results are related to hook type and bait 

type. Reduction of daylight soak-time has also been shown to 

significantly reduce bycatch. Results should be field tested in the tuna 

directed fishery to ensure comparable bycatch reduction. 

6245. Investigate the effectiveness of time-area closures to minimize 

loggerhead interactions in domestic commercial pelagic and demersal 

longline fisheries. 

Pelagic and demersal longline fishery observer data, loggerhead 

distribution data, loggerhead movement data, and fishery effort data 

should be fully analyzed in a GIS environment to evaluate the 

effectiveness of time-area closures to minimize loggerhead bycatch. 

6246. Promulgate regulations to implement proven measures that minimize 

loggerhead interactions with commercial pelagic and demersal longline 

fisheries. 

Enforceable bycatch reduction measures, which include proven and 

specific gear modifications, time/area closures, and/or changes in 

fishing practices, should be implemented by regulation. Regulations 

must be specific and enforceable. 

6247. Develop and implement effective approaches to enforcing longline 

regulations in U.S. territorial waters, the U.S. EEZ, and on the high 

seas. 

Enforcement of regulations such as gear modifications, time-area 

closures, and safe handling practices are particularly difficult to enforce 

offshore and on the high seas. Vessel monitoring systems should be 

required on all vessels engaging in fisheries that operate under 

time/area restrictions. NMFS Enforcement and USCG must maintain 

an active role in the development and promulgation of regulatory 

regimes to ensure that they are enforceable and that capacity exists to 

carry out such enforcement. 
II-86

6248. Promote the use of safe handling practices and careful release tools in 

domestic commercial pelagic and demersal longline fisheries. 

Proper handling of loggerheads captured in pelagic and demersal 

longline gear may increase their probability of survival after release. 

Sea turtle careful handling and release protocols have been developed 

with the goal of minimizing injuries and maximizing survival after 

release (Epperly et al. 2004). These protocols should be promoted 

domestically and internationally. 

625. Minimize loggerhead bycatch in domestic commercial and recreational pot/trap 

fisheries. 

6251. Describe and characterize pot/trap fisheries. 

A comprehensive characterization of all pot/trap fisheries in domestic 

waters should be completed to identify fishing areas, effort, gear 

characteristics, fishing practices, loggerhead bycatch data, and relevant 

regulations. 

6252. Integrate information gathered in 6251 with turtle distribution data 

(linked to actions 141 and 29). 

A comprehensive GIS integrating pot/trap fishery distribution and 

effort data, gear and fishing characteristics, turtle distribution and 

bycatch data, and oceanographic information should be developed and 

periodically updated to assist in analyzing fishery interactions and 

developing effective solutions to minimize bycatch of loggerheads in 

this gear type. 

6253. Develop gear modifications to prevent entanglement of loggerheads in 

pot/trap lines. 

Modifications to pot/trap gear should be explored and tested to reduce 

loggerhead bycatch (e.g., stiffened lines, weighted line to eliminate 

extra line on the surface, and weighted groundlines to connect 

pots/traps). 

6254. Promulgate regulations to incorporate modifications to whelk pot 

bridles to prevent loggerhead entanglement. 

NMFS has initiated research to characterize loggerhead interactions 

with whelk pot bridles and to develop gear modifications that will 

prevent entanglement of loggerheads. Research conducted to date 

should be fully analyzed and expanded as appropriate to develop 
II-87

bycatch solutions. Regulations requiring appropriate gear 

modifications in the whelk pot fishery should be promulgated. 

6255. Promulgate appropriate regulations to reduce incidental capture of 

loggerheads in pots/traps. 

Successful gear modifications resulting from 6253 should be 

implemented by regulation. 

6256. Require identification on pot/trap gear. 

Marking of pot/trap gear that allows owner identification will create 

incentives for fishers to remove all gear outside of fishing seasons 

thereby reducing the amount of abandoned gear in the water. 

626. Minimize loggerhead bycatch in domestic commercial dredge fisheries. 

6261. Describe and characterize domestic commercial dredge fisheries. 

A comprehensive characterization of all commercial dredge fisheries in 

domestic waters should be completed to identify fishing areas, effort, 

gear characteristics, fishing practices, loggerhead bycatch data, and 

relevant regulations. 

6262. Integrate information gathered in 6261 with turtle distribution data 

(linked to actions 141 and 29). 

A comprehensive GIS integrating domestic commercial dredge fishery 

distribution and effort data, gear and fishing characteristics, turtle 

distribution and bycatch data, and oceanographic information should be 

developed and periodically updated to assist in analyzing fishery 

interactions and developing effective solutions to minimize bycatch of 

loggerheads in this gear type. 

6263. Evaluate the effectiveness of gear modifications developed to reduce 

loggerhead bycatch in the domestic commercial scallop dredge fishery. 

Efforts to reduce bycatch in the commercial scallop dredge fishery 

operating in the mid-Atlantic have resulted in the development of a 

chain mat that appears to keep turtles from entering the dredge bag. 

However, this modification does not address interactions with turtles on 

the bottom. Efforts are underway to develop a dredge with a modfied 

frame to reduce the probability of a turtle on the bottom going under the 

dredge frame. Additional controlled testing and field testing using 

video technology is needed to ascertain the actual effectiveness of these 
II-88

modifications and whether they are sufficient to prevent entrapment, 

injury, or death. 

6264. Promulgate regulations that reduce loggerhead bycatch and mortality in 

the domestic commercial scallop dredge fishery. 

The commercial scallop dredge fishery, operating off the mid- and 

northeast Atlantic coastline, incidentally captures many loggerheads 

each year, and many of these turtles are killed or seriously injured by 

this heavy, bottom-tending gear. Enforceable bycatch reduction 

measures, which may include proven and specific gear modifications, 

time/area closures, and/or changes in fishing practices, should be 

implemented by regulation. 

6265. Investigate bycatch and mortality of loggerheads in commercial whelk 

dredge fisheries. 

A statistically valid observer program should be developed and 

implemented to monitor and estimate bycatch, injury, and mortality of 

loggerheads in the commercial whelk dredge fishery. The sampling 

program must be designed to provide sufficient observer coverage 

across the range of the fishery during the seasons when loggerheads are 

known to inhabit the targeted fishing areas. 

6266. Investigate bycatch and mortality of loggerheads in commercial surf 

clam dredge fisheries. 

A statistically valid observer program should be developed and 

implemented to monitor and estimate bycatch, injury, and mortality of 

loggerheads in the commercial surf clam dredge fishery. The sampling 

program must be designed to provide sufficient observer coverage 

across the range of the fishery during the seasons when loggerheads are 

known to inhabit the targeted fishing areas. 

627. Minimize loggerhead bycatch in other domestic commercial fisheries. 

6271. Describe and characterize other domestic commercial fisheries. 

A comprehensive characterization of all other commercial fisheries that 

are likely to take loggerheads during their operations in domestic 

waters should be completed to identify fishing areas, effort, gear 

characteristics, fishing practices, loggerhead bycatch data, and relevant 

regulations. 
II-89

6272. Integrate information gathered in 6271 with turtle distribution data 

(linked to actions 141 and 29). 

A comprehensive GIS integrating other domestic commercial fishery 

distribution and effort data, turtle distribution and bycatch data, and 

oceanographic information should be developed and periodically 

updated to assist in analyzing fishery interactions and developing 

effective solutions to minimize bycatch of loggerheads in these 

fisheries. 

6273. Investigate bycatch and mortality of loggerheads in other domestic 

commercial fisheries and implement bycatch reduction measures as 

necessary. 

A statistically valid observer program should be developed and 

implemented to monitor and estimate bycatch, injury, and mortality of 

loggerheads in the other domestic commercial fisheries. The sampling 

program must be designed to provide sufficient observer coverage 

across the range of the fishery during the seasons when loggerheads are 

known to inhabit the targeted fishing areas. Appropriate bycatch 

reduction measures should be identified and implemented. 

6274. Ensure that no increase in effort over 2003 levels occurs in the 

Sargassum fishery to minimize loggerhead bycatch. 

Sargassum harvest by surface trawling removes habitat essential to 

post-hatchling loggerheads and has been documented to result in the 

bycatch of young loggerheads. The current Fishery Management Plan 

for pelagic Sargassum habitat contains a number of actions that limit 

how, when, where, and how much Sargassum may be harvested 

annually. NMFS must ensure that no additional effort is authorized in 

this fishery. Unregulated, the threat posed by this fishery is substantial 

since post-hatchlings depend on Sargassum communities for forage and 

shelter. 

628. Enforce domestic commercial fishery regulations to minimize loggerhead 

bycatch. 

Without comprehensive at-sea and dockside enforcement, regulations designed 

to reduce loggerhead bycatch will not be effective. For example, the 2003 

larger opening TED regulations are expected to significantly reduce mortality of 

large immature and adult loggerheads that interact with the southeast U.S. 

shrimp trawl fishery. However, if TEDs are not installed or used properly, their 

effectiveness is significantly diminished and expected conservation gains will 

not be realized. 
II-90

63. Minimize loggerhead bycatch in foreign commercial fisheries. 

Work with foreign governments and international fishery management organizations to 

reduce loggerhead bycatch in foreign commercial fisheries (i.e., foreign fleets fishing in 

their domestic waters and fishing on the high seas). 

631. Disseminate results of bycatch reduction experiments and transfer demonstrated 

bycatch reduction technologies to foreign nations. 

NMFS and U.S. Department of State (DOS) should continue to work together to 

inform relevant foreign fishing nations and international fishery organizations 

(e.g., ICCAT, FAO-COFI) of demonstrated loggerhead bycatch reduction 

solutions including, but not limited to, larger opening TEDs, modifications to 

longline gear, and restrictions to large mesh gillnets. Capacity building efforts 

should continue to be expanded to transfer developed technologies through 

organized fisherman-training workshops and dissemination of targeted 

educational materials (including videos) in appropriate languages. If necessary, 

the U.S. should explore the development of economic incentives to encourage 

the adoption of bycatch reduction approaches by foreign nation fleets that 

interact with loggerheads. 

 

632. Encourage and assist foreign nations in collecting data on loggerhead bycatch 

via observer programs for commercial fisheries where bycatch levels are 

undocumented. 

A number of existing, expanding, and/or developing foreign fisheries have the 

potential for high loggerhead bycatch and mortality. NMFS and DOS should 

work through all available avenues to encourage and assist foreign nations with 

implementing valid data collection programs to document loggerhead bycatch. 

Of high priority are the black scabbard hook and line fishery in Madeira and the 

Azores and the deep-sea crab pot fisheries of the northeastern Atlantic. 

633. Encourage and assist foreign nations to develop, implement, and enforce fishery 

regulations to minimize loggerhead bycatch in commercial pelagic longline 

fisheries. 

NMFS and DOS should work via existing bi-lateral and multi-lateral 

agreements and forums to encourage foreign nations to reduce loggerhead 

bycatch in their domestic commercial pelagic longline fisheries. Where 

appropriate, incentives such as enhanced market access should be explored to 

provide strong incentives for reducing bycatch. Significant efforts should be 

directed at improving enforcement capacity in foreign nations through 

workshops, training, and exchange programs. 
II-91

634. Encourage and assist foreign nations to develop, implement, and enforce fishery 

regulations to minimize loggerhead bycatch in commercial trawl fisheries. 

NMFS and DOS should work via existing bi-lateral and multi-lateral 

agreements and forums to encourage foreign nations to reduce loggerhead 

bycatch in their domestic commercial trawl fisheries. Where appropriate, 

incentives such as enhanced market access should be explored to provide strong 

incentives for bycatch reduction. Significant efforts should be directed at 

improving enforcement capacity in foreign nations through workshops, training, 

and exchange programs. 

635. Encourage and assist foreign nations to develop, implement, and enforce fishery 

regulations to minimize loggerhead bycatch in commercial gillnet fisheries. 

NMFS and DOS should work via existing bi-lateral and multi-lateral 

agreements and forums to encourage foreign nations to reduce loggerhead 

bycatch in their domestic commercial gillnet fisheries. Where appropriate, 

incentives such as enhanced market access should be explored to provide strong 

incentives for reducing bycatch. Significant efforts should be directed at 

improving enforcement capacity in foreign nations through workshops, training, 

and exchange programs. 

636. Encourage and assist foreign nations to develop, implement, and enforce fishery 

regulations to minimize loggerhead bycatch in other commercial fisheries. 

NMFS and DOS should work via existing bi-lateral and multi-lateral 

agreements and forums to encourage foreign nations to reduce loggerhead 

bycatch in their other domestic commercial fisheries. Where appropriate, 

incentives such as enhanced market access should be explored to provide strong 

incentives for reducing bycatch. Significant efforts should be directed at 

improving enforcement capacity in foreign nations through workshops, training, 

and exchange programs. 

637. Develop economic incentives to reduce fishery interactions and mortality of 

loggerheads in foreign high seas fisheries. 

The U.S. should work to develop positive economic incentives that will 

encourage foreign nations to minimize bycatch of loggerheads on the high seas. 

An evaluation of the effectiveness of turtle-safe, eco-labeling should be carried 

out to determine if such an effort would have a positive effect on minimizing 

bycatch in foreign fisheries that import product to the U.S. The U.S. should 

explore all other constructive avenues to provide incentives to foreign nations to 

minimize loggerhead bycatch. 
II-92

638. Encourage ICCAT, Canada, Mexico, and the European Union to implement 

standards for collecting loggerhead bycatch information and requirements to 

minimize loggerhead bycatch. 

NMFS and DOS should work to encourage ICCAT to fully incorporate 

loggerhead bycatch reduction in fisheries within their purview as one of its 

primary objectives. ICCAT should implement binding turtle bycatch data 

collection and annual reporting standards. NMFS and DOS should work 

together to advance binding adoption of demonstrated and specific loggerhead 

bycatch reduction techniques (including gear and fishing practice changes and 

time-area closures as appropriate) in fisheries prosecuted under the auspices of 

ICCAT. 

64. Develop and implement a strategy to assess, monitor, and minimize effects of trophic 

changes on loggerheads from fishing and habitat alteration. 

Fisheries may reduce the abundance of species important in loggerhead diets and could 

potentially alter the trophic structure of ecosystems upon which loggerheads depend. 

Habitat alteration from fishing gear may also affect prey distribution and abundance. 

641. Assess loggerhead diets and food web linkages in neritic and oceanic habitats. 

Loggerheads are able to exist on a wide variety of food items with ontogenetic 

and regional differences in diet. Loggerhead diets have been described from 

just a few coastal regions, and very little information is available about 

differences or similarities in diet at various life stages. Very little is known of 

the diet of oceanic juveniles. Studies on loggerhead diet are challenging, and 

relating diet to food webs in neritic and oceanic habitats is complex. To 

effectively gather data and improve our knowledge in this area, it may be 

advantageous to convene an expert group to develop an action plan for moving 

forward effectively. 

642. Assess and minimize effects of commercial harvest of loggerhead prey species. 

In the U.S., fishery management plans (FMPs) drafted by regional Fishery 

Management Councils must undergo review in accordance with section 7 of the 

ESA. Management plans for state fisheries developed by the Atlantic or Gulf 

States Marine Fisheries Commissions (ASMFC and GSMFC) also undergo 

review for protected species concerns, albeit not a Federal section 7 

consultation. To date, evaluation of these plans has focused on direct mortality 

of ESA-listed species but has not considered trophic or ecosystem effects from 

fishery harvest of loggerhead prey species. Both Federal and state fishery 

management plans should include a thorough evaluation of fishery induced 

trophic and ecosystem changes on loggerheads. 
II-93

Fishery induced diet shifts may be detrimental to loggerheads. Such shifts 

should be evaluated and consideration should include relative nutritional value 

of prey items and energetic costs of prey capture. Where diets have shifted to 

fish, an evaluation should be made as to whether loggerheads are more 

vulnerable to being taken in fishing gear. In addition to fishery capture of target 

prey species, which may affect loggerheads, fishery bycatch may also 

potentially have trophic impacts on loggerheads. 

643. Assess effects of habitat alteration from commercial fisheries on distribution 

and abundance of loggerhead prey species. 

Alterations in the structure, function, and community composition of benthic 

habitats from bottom trawl and dredge fisheries can have a major effect on the 

distribution of loggerhead turtles as a result of changes in food/prey availability, 

habitat structure and function, and water quality. Bottom tending fishing gear 

can be destructive to a wide variety of habitats. Hard bottom habitats are 

particularly vulnerable to destruction from roller rig trawler gear because 

benthic fauna may be crushed by the weight of rollers and trawls. Seagrass, 

coral, sponge, and other live bottom habitats can also be destroyed or 

structurally and functionally altered by trawling gear. Anchoring vessels in 

sensitive habitats may also be destructive. 

65. Develop and implement a strategy to minimize the effects of marine debris ingestion 

and entanglement. 

Marine debris may originate from land or sea, primarily through careless disposal of 

non-biodegradable refuse. Suspected sources of these materials are large transport 

vessels pumping bilges and discarding garbage, commercial and recreational fishing 

vessels, oil and gas platforms, beachgoers, and cruise liners. 

651. Determine frequency of marine debris ingestion and entanglement by 

loggerheads in neritic and oceanic habitats. 

Ingestion of marine debris and entanglement in discarded nets, monofilament 

lines, and ropes affects immature and adult loggerheads. Young, oceanic-stage 

loggerheads are particularly vulnerable to ingestion of persistent materials. 

Studies should be expanded to categorize and quantify the ingestion of and 

entanglement in marine debris by loggerheads inhabiting Atlantic and Gulf 

waters. 

652. Evaluate the sublethal effects of marine debris ingestion and entanglement on 

loggerheads. 

Additional research is needed to evaluate the long-term effects of synthetic 

marine debris ingestion on sea turtles, particularly with regard to early life 

stages. Sublethal consequences of exposure to hydrocarbons and other toxic 
II-94

substances need to be investigated. The population dynamics of loggerheads 

are sensitive to survival and growth in the oceanic juvenile stage, and oceanic 

juveniles are often found in the same regions with aggregated synthetic debris. 

If these interactions significantly affect survival or growth, there could be 

substantial population-level effects. Research is also needed on the sublethal 

effects of entanglement on sea turtles. Loggerheads have been found entangled 

in a wide variety of man-made materials and are commonly found with scars 

and marks from previous entanglement. Turtles that survive marine debris 

entanglement incidents may incur permanent injuries, such as the loss of a 

flipper, which may reduce overall fitness. 

653. Enforce the International Convention for the Prevention of Pollution from Ships 

(MARPOL). 

The MARPOL Protocol (International Convention for the Prevention of 

Pollution from Ships, 1973, as modified by the Protocol of 1978) is the main 

international convention covering the prevention of pollution (including oil, 

chemicals, harmful substances in packaged form, sewage, and garbage) of the 

marine environment by ships from operational or accidental causes. As the 

1973 Convention had not yet entered into force, the 1978 MARPOL Protocol 

absorbed the parent Convention and entered into force in October 1983 (for 

Annexes I and II). Annex V, which prohibits the dumping of all plastic wastes, 

including plastic packaging materials and fishing gear, from all ships at sea, 

entered into force in December 1988. Not only did this mark the first effort in 

the U.S. law to address the problem of plastic debris in the oceans, but the 

ratification of Annex V enabled the law to come into force internationally. As 

of January 1989, the Marine Plastic Pollution Research and Control Act makes 

it against the law to dump plastics at sea and in all U.S. navigable waters. 

Continued and increased efforts are needed to collect data and identify sources 

of marine debris, spearhead educational activities, and vigorously enforce 

marine pollution laws to reduce marine debris throughout the world's oceans. 

654. Explore feasibility and provide incentives to reduce the amount of abandoned 

recreational and commercial fishing gear that causes loggerhead injury and 

mortality. 

Efforts should be undertaken to explore whether economic incentives could be 

developed that would function as a viable mechanism to encourage the return of 

recreational and commercial fishing gear to land. Implementation of 

requirements for marking gear with unique identifiers can provide incentives for 

recovery of gear if penalties for abandoning gear are sufficient and enforced. 
II-95

655. Explore feasibility and provide incentives to reduce the amount of non-fisheries 

related marine debris that causes loggerhead injury and mortality. 

Economic incentives should be developed that would encourage the return of 

non-fisheries synthetic debris (e.g., plastic food and beverage containers, plastic 

bags, synthetic dunnage, cargo nets) for proper disposal or recycling on land. If 

people perceive a benefit from an action, they are more likely to undertake it or 

support it. Industry support for reducing plastic trash and encouraging greater 

recycling rates could reduce the amount of synthetic litter reaching rivers, 

coasts, and oceans. 

656. Maintain or implement marine debris cleanup programs in coastal waters. 

Regularly scheduled cleanups of nearshore and inshore marine habitats to 

remove and document debris should be continued, expanded, and/or 

implemented. The International Coastal Cleanup, coordinated by the Ocean 

Conservancy, is an excellent example of such an event. 

66. Develop and implement a strategy to reduce vessel strikes. 

In recent years, 15 to 20% of live and dead stranded loggerheads along the neritic 

coastline of the U.S. Atlantic and Gulf of Mexico had sustained injuries as a result of 

vessel strikes. While some injuries may occur post mortem, the prevalence of sea 

turtles with boat related injuries coincident with areas of high vessel activity (including 

recreational and commercial vessels) suggests a significant problem in some locations. 

661. Develop a comprehensive GIS database to assess vessel interactions with 

loggerheads. 

A comprehensive spatial assessment of loggerhead distribution, vessel strikerelated strandings, vessel activity, and vessel infrastructure (boat ramps, 

channels, ports) should be undertaken in a GIS environment to assist in the 

analysis of vessel interactions with loggerheads. 

662. Develop and implement a strategy to reduce vessel interactions with 

loggerheads. 

A working group consisting of relevant experts should be convened to draft a 

strategy (using the information resulting from the analysis conducted in action 

661) to reduce vessel strike injury and mortality to loggerheads. Measures such 

as protected areas, no motor zones, or speed regulations should be considered 

for specific areas as appropriate. This strategy should be implemented as 

rapidly as possible to address this serious threat to loggerheads. 
II-96

67. Monitor and minimize mortality from channel dredging activities. 

The COE is congressionally mandated to maintain U.S. navigational channels. To 

ensure that authorized channel depths are sustained, periodic dredging is required. 

Some types of dredges, particularly the hopper dredge, have been shown to take sea 

turtles and, on a cumulative basis, this take is believed to be significant. Turtle 

mortality can be documented by screening the inflows/outflows on a hopper dredge, by 

observation aboard a clamshell dredge, or by observing the discharge of a pipeline 

dredge. Presently, NMFS believes that few, if any, turtles are impacted by clamshell or 

pipeline dredges, but that the hopper dredge is a major problem. Therefore, observer 

coverage and appropriate screening on all hopper dredge operations should be required 

to document take and associated mortality. 

671. Assess effects of new technologies for channel dredge equipment on loggerhead 

captures. 

Channel dredging operations have historically relied on dredge machinery 

(hydraulic, hopper, clamshell) to remove sediments from navigational channels. 

However, other types of machinery are often used. For instance, on some 

channel dredging projects, bed levelers are used to smooth out ruts in the 

channel bottom created by hopper dredging activity. The bed leveler is a large 

steel blade (50 ft by 6 ft) that is dragged along the channel to smooth out the 

bottom. The bed leveler is generally lowered from a barge and pushed by a tug 

boat. Unusual stranding patterns (crushed carapace) documented by STSSN 

cooperators in Georgia suggested the bed leveler may crush and kill sea turtles. 

Controlled experiments should be conducted to determine the effects of new 

technologies such as bed levelers on turtle populations prior to use in dredging 

operations. 

672. Incorporate effective channel dredge equipment modifications into future 

operations. 

Additional research, development, and improved performance are needed for 

the currently used deflector dragheads on hopper dredges. Efforts should focus 

on improving currently used equipment modifications to further reduce sea 

turtle capture. Protocols for evaluating potential modifications on turtle capture 

should be developed in conjunction with NMFS, COE, and industry. 

673. Maintain current requirements for channel dredging activities in the southeast 

U.S. Atlantic and Gulf of Mexico and evaluate whether additional measures are 

required to minimize loggerhead mortality. 

Significant reductions in the capture of loggerheads during U.S. channel 

dredging operations have occurred over the past two decades. Reductions in 

capture have occurred primarily as a result of dredging windows and 

modifications to hopper dredge dragheads. However, despite these and other 
II-97

requirements, capture and mortality of loggerheads in hopper dredging gear 

continues to occur. Periodic evaluations of current dredging windows and 

operational requirements should be conducted and additional or modified 

measures implemented that will further minimize loggerhead capture. 

Evaluations of the effects of relocation trawling (relocating loggerheads away 

from channels scheduled for or undergoing dredging) on individual turtles 

should be thoroughly investigated, especially during breeding periods. 

674. Implement regional requirements for channel dredging activities north of North 

Carolina to minimize loggerhead mortality. 

Regional requirements applicable to all channel dredging activities in the Gulf 

of Mexico and southeast U.S. Atlantic (south of Virginia) have been 

implemented through ESA section 7 consultations. In contrast, channel 

dredging activities north of North Carolina are evaluated on a case-by-case basis 

in accordance with section 7 of the ESA. Efforts should be undertaken to 

develop a regional consultation to consider all anticipated channel dredging 

operations in this region and their cumulative effects on loggerheads. 

Regionwide requirements to minimize loggerhead capture and mortality in 

channel dredging operations north of North Carolina should be implemented 

through section 7 of the ESA. 

7. Facilitate recovery through public awareness, education, and information transfer. 

Sea turtle conservation requires long-term public support over a large geographic area. The 

public must be factually informed of the issues particularly when conservation measures 

conflict with human activities on the beach, such as coastal development and public use of 

nesting beaches. Public education is the foundation upon which a long-term conservation 

program will succeed or fail. 

71. Develop and distribute educational materials. 

Educational materials on sea turtle ecology and conservation needs should be 

developed and distributed to the public. 

711. Develop a video about the impacts of beachfront lighting on loggerheads and 

ways to minimize impacts. 

A professionally produced video about the impacts of beachfront lighting on sea 

turtles and recommendations on how to minimize lighting while still meeting 

human safety needs would provide tremendous support and reinforcement of the 

many coastal lighting ordinances. A high quality video that could be used 

during the nesting season should be developed. 
II-98

712. Maintain websites with comprehensive information about loggerheads. 

Comprehensive information on sea turtles should be made readily available on 

the Internet (e.g., websites maintained byseaturtle.org, ACCSTR, FFWCC, 

SCDNR, NMFS, FWS). NMFS, FWS, state resource agencies, and other 

agencies and organizations should provide support to ensure these web sites are 

maintained and updated regularly. 

713. Develop an educational curriculum for students and the public about loggerhead 

demography and ecological roles. 

An educational curriculum should be developed and distributed to schools for 

use in instructing children (K-12) about loggerhead demographics and their 

ecological roles. The curriculum should include information on the important 

roles they fulfill in marine ecosystems, such as their role in controlling prey 

species and themselves providing food to larger predators. The curriculum 

should also explain the potential widespread effects of the disappearance of 

loggerheads in the open ocean and coastal ecosystems. 

714. Use computer gaming technologies to engage young people in sea turtle 

conservation. 

Environmental education needs to tap into current technologies to reach groups 

increasingly attracted to the computer gaming technologies. Computer games 

can be developed that are challenging, engaging, and educational. Graphics 

technologies also allow visualization of turtles moving through their 

development in various habitats from beaches to the open ocean to nearshore 

marine habitats. Games could vary from following a single turtle through its 

life history to “management” simulations that allow the gamer to try different 

management decisions to see if they can “save the loggerheads.” Given all the 

threats, gamers could achieve different levels in the game by meeting new 

challenges to loggerhead populations. Recent cartoons, movies, and 

documentaries clearly demonstrate that youth can be engaged by sea turtles as 

“charismatic megafauna” or as charismatic individuals. 

72. Facilitate international scientific communication and information sharing. 

Publications like the Marine Turtle Newsletter, as well as information shared through 

organizations like the International Sea Turtle Society and through list servers like 

CTURTLE, are sources of up-to-date information on events occurring within the sea 

turtle community and are of vital importance in the recovery effort worldwide. 

Because most sea turtles are globally distributed and all are highly migratory, 

international availability of such sources of information ensures an open line of 

communication among scientists, conservationists, and policymakers in many 

countries. NMFS, FWS, state resource agencies, and other agencies and organizations 

should provide support to ensure their continuation. 
II-99

73. Ensure facilities permitted to hold and display captive loggerheads have appropriate 

informational displays. 

Over 50 facilities in the U.S. are permitted to hold sea turtles for rehabilitation, 

research, and public education. Many loggerheads are on public display, which affords 

opportunities for public education. Display of accurate information on the basic 

biology and conservation issues should be a requirement of all permitted facilities. All 

facilities should be inspected to ensure captive sea turtles are being displayed in a 

manner that meets these criteria. 

74. Ensure standard criteria and recommendations for sea turtle nesting interpretive walks 

are followed. 

In the U.S., sea turtle walks are popular with the public and afford tremendous 

opportunities for public education or, if poorly conducted, misinformation. State 

permitting agencies should develop or refine standards for permittees conducting both 

daytime and nighttime interpretive walks. These objective criteria should be used to 

evaluate sea turtle walks to ensure they are professional, provide accurate biological 

information, convey an accurate conservation message, and are a positive experience. 

Just as importantly, they should not cause unnecessary or significant disturbance to 

nesting turtles.

75. Develop guidelines for and encourage interpretive daytime turtle walks. 

The establishment of daytime interpretive sea turtle walks should be encouraged. 

Guidelines should be developed to ensure nests are not impacted during walks and that 

appropriate information on sea turtle conservation is shared. 

76. Place educational signs at public access points on nesting beaches and points of access 

to the marine environment. 

Public access points on nesting beaches provide excellent opportunities to inform the 

public of necessary precautions for compatible public use on the nesting beach and to 

develop public support through educational signs. Educational signs should be placed 

on nesting beaches as appropriate. Public access points, such as marinas, jetties, piers, 

and boat launch ramps, also provide opportunities to educate fishers and other users of 

the marine environment about loggerhead conservation. 

77. Conduct a contingent valuation study to measure the economic value of sea turtle 

related ecotourism. 

A contingent valuation study should be conducted to estimate the economic value of 

loggerheads. Estimates are needed for the public's perception of non-consumptive and 

intrinsic values of loggerheads. These values are appreciated by the public either 

intrinsically or through ecotourism activities such as turtle walks and aquaria visits. 
II-100

Contingent valuation studies involve carefully designed surveys in which people are 

asked how much they would be willing to pay for specific sea turtle related ecotourism 

activities or for the assurance that sea turtles would continue to exist in functional 

abundance. Analysis of survey results will allow economic comparisons between the 

values of sea turtles and other values measured in economic terms. 
III-1

PART III. RECOVERY IMPLEMENTATION 

Because loggerheads are highly migratory and use the waters of more than one country in their 

lifetimes, conservation efforts for loggerhead populations in one country may be hindered by 

activities in another. Therefore, recovery of the Northwest Atlantic population of the loggerhead 

will involve multiple partners, international cooperation, and a diversity of approaches. 

The Implementation Schedule that follows outlines actions and estimated costs for the recovery 

program for the Northwest Atlantic population of the loggerhead as set forth in this recovery 

plan. It is a guide for meeting the recovery goals outlined in this plan. This schedule indicates 

action priorities, action numbers, action descriptions, duration of actions, the parties responsible 

for actions (either funding or carrying out), and estimated costs. It is important to note that many 

of the actions include other species of sea turtles; therefore, the costs contribute to their recovery 

as well. Domestic parties with authority, responsibility, or expressed interest to implement a 

specific recovery action are identified in the Implementation Schedule. The listing of a party in 

the Implementation Schedule does not require the identified party to implement the action(s) or 

to secure funding for implementing the action(s). However, parties willing to participate will 

benefit by being able to show in their own budget submittals that their funding request is for a 

recovery action that has been identified in an approved recovery plan and is therefore part of the 

overall coordinated effort to recover the Northwest Atlantic population of the loggerhead. Also, 

section 7(a)(1) of the ESA directs all Federal agencies to use their authorities in furtherance of 

the purposes of the ESA by carrying out programs for the conservation of threatened and 

endangered species. 

We estimate the Northwest Atlantic loggerhead population will reach recovery in one to three 

generations (50 to 150 years, respectively). The lower estimate of one generation (50 years) 

assumes a rapid reversal of the current declining trends of the Northern, Peninsular Florida, and 

Northern Gulf of Mexico Recovery Units. Projecting cost estimates out 50 to 150 years is 

problematic due to unpredictable economic fluctuations. While we are comfortable estimating 

costs for the first 5 years of plan implementation, any projections beyond this date are likely to 

be imprecise and unrealistic. In the Implementation Schedule, we have identified total costs only 

for the first 5 years of plan implementation. To estimate total costs to the earliest potential time 

to recovery (50 years), we have simply multiplied the 5-year estimate by 10, recognizing that 

some unanticipated costs may not be accounted for and some costs may increase or decrease 

over time. 
III-2

Following are definitions used in the Implementation Schedule. Agency abbreviations may be 

found in the List of Acronyms and Abbreviations at the beginning of this document (see Table of 

Contents for page number). 

PRIORITY NUMBER

Priority 1 - An action that must be taken to prevent extinction or to prevent the species from 

declining irreversibly in the foreseeable future. 

Priority 2 - An action that must be taken to prevent a significant decline in species 

population/habitat quality or some other significant impacts short of extinction. 

Priority 3 - All other actions necessary to provide for full recovery of the species. 

ACTION NUMBER AND ACTION

Recovery actions as numbered in Part II.F. of this plan. 

 

ACTION DURATION AND COST

Ongoing - A task that is currently being implemented and will continue until action is no longer 

necessary. 

TBD - To be determined. 
III-3

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

2 111 Refine geographic 

boundaries of recovery units. 

4 FWS-ES, 

NMFS 

Academia, ADCNR, FFWCC, GDNR, NCWRC, SCDNR 

350 100 100 100 50 

2 112 Monitor population 

genetic structure on foraging grounds. 

Ongoing NMFS Academia, 

State Resource Agencies 

1250 250 250 250 250 

3 113 Develop new 

techniques for refining population genetic structure. 

5 Academia FWS-ES, 

NMFS 

1000 200 200 200 200 

2 121 Maintain and/or adopt 

standardized criteria for on-the-ground nesting surveys. 

2 FWS-ES FFWCC, 

GDNR, SCDNR, NCWRC, ADCNR 

40 20 20 

1 122 Continue to monitor 

trends in nesting and non-nesting emergences on index/standardized beaches. 

Ongoing FFWCC, 

GDNR, SCDNR, NCWRC, ADCNR 

FWS-ES/ Refuges, FDEP, SCDPRT, NCDENR,NPS, DOD, Local Govts, NGOs, UCF, FPL 

3750 750 750 750 750 
III-4

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

2 123 Incorporate index/ 

standardized nesting survey protocols on additional beaches to fully represent recovery units. 

2 FWS-ES FFWCC, 

SCDNR, NCWRC, FWSRefuges, NPS, DOD, NGOs 

20 10 10 

3 124 Monitor annual nesting 

and non-nesting emergences on nonindex/non-standardized beaches as extensively as possible. 

Ongoing FFWCC, 

GDNR, SCDNR, NCWRC, ADCNR 

FWS, FDEP, SCDPRT, NCDENR, NPS, DOD, Local Govts, NGOs 

1250 250 250 250 250 

2 125 Conduct periodic 

censuses of recovery units to obtain total nest counts and geographic distribution of nesting. 

Ongoing FWS-ES ADCNR, 

FFWCC, GDNR, SCDNR, NCWRC, NPS, FWSRefuges, Local Govts 

500 

2 131 Establish a network of 

index in-water study sites across the range of all habitats (neritic and oceanic) and develop sampling protocols to estimate indices of abundance and determine trends. 

3 NMFS State 

Resource Agencies, Academia 

110 50 50 10 
III-5

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

1 132 Evaluate, improve, 

maintain, and expand in-water surveys at index sites to estimate indices of abundance and determine trends. 

Ongoing NMFS, 

State Resource Agencies 

Academia, NGOs, NPS, FPL 

3750 750 750 750 750 

2 133 Develop sampling 

protocols for conducting large-scale in-water surveys to estimate indices of abundance and determine trends. 

3 NMFS State 

Resource Agencies, Academia 

55 25 25 5 

1 134 Implement large-scale 

in-water surveys to estimate indices of abundance and determine trends. 

Ongoing NMFS State 

Resource Agencies, Academia 

TBD TBD TBD TBD TBD 

2 141 Develop and maintain a 

comprehensive GIS database of distribution and abundance. 

Ongoing NMFS, 

State Resource Agencies 

Academia 500 100 100 100 100 

2 142 Determine migratory 

pathways for all life history stages. 

10 NMFS, 

State Resource Agencies 

FWS-ES, Academia 

2500 500 500 500 500 

2 151 Adopt standardized 

hatchling production assessment criteria. 

3 FWS-ES FFWCC, 

GDNR, SCDNR, NCWRC, ADCNR 

40 20 20 
III-6

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

2 152 Implement annual 

assessments of hatchling production using standardized criteria. 

Ongoing FWS-ES 

FFWCC, GDNR, SCDNR, NCWRC, ADCNR 

FWSRefuges, FDEP, SCDPRT, NCDENR, NPS, FPL, DOD, Local Govts, NGOs, UCF 

1000 200 200 200 200 

2 153 Determine and monitor 

clutch frequency. 

Ongoing FWS-ES, 

FFWCC, GDNR, SCDNR, NCWRC 

Academia, NMFS 

1000 200 200 200 200 

2 154 Determine and monitor 

remigration interval. 

Ongoing NMFS 

FFWCC, GDNR, SCDNR, NCWRC 

FWS-ES, Academia 

TBD TBD TBD TBD TBD 

3 155 Determine female 

reproductive lifespan. 

Ongoing NMFS FWS-ES, 

FFWCC, GDNR, SCDNR, NCWRC, Academia 

TBD TBD TBD TBD TBD 

2 1611 Refine and develop 

techniques for determining sex ratios. 

3 State 

Resource Agencies, Academia 

NMFS 150 50 50 50 

3 1612 Refine and develop 

aging techniques. 

5 NMFS, 

Academia 

 250 50 50 50 50 

2 1613 Determine somatic 

growth rates and evaluate sources of variation. 

10 NMFS, 

State Resource Agencies, Academia 

 TBD TBD TBD TBD TBD 
III-7

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

2 1614 Determine age-specific 

survival probabilities. 

5 NMFS FWS-ES, 

Academia, State Resource Agencies 

250 50 50 50 50 

2 1615 Determine age at 

sexual maturity for females. 

10 NMFS FWS-ES, 

State Resource Agencies, Academia 

TBD TBD TBD TBD TBD 

3 1616 Determine age at 

sexual maturity, reproductive frequency, and reproductive lifespan for males. 

Ongoing NMFS Academia, 

State Resource Agencies 

TBD TBD TBD TBD TBD 

2 162 Implement sampling 

and data collection protocols at index inwater sites. 

Ongoing NMFS State 

Resource Agencies, Academia, NGOs, FPL 

1250 250 250 250 250 

1 171 Maintain the Sea Turtle 

Stranding and Salvage Network. 

Ongoing NMFS, 

State Resource Agencies, 

FWSRefuges, Aquaria, NPS, DOD, USCG, Local Govts, NGOs, Academia, FPL 

2500 500 500 500 500 

2 172 Implement 

improvements to the Sea Turtle Stranding and Salvage Network. 

Ongoing NMFS, 

State Resource Agencies 

 1250 250 250 250 250 
III-8

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

3 18 Maintain and enhance 

centralized administration and coordination of tagging programs. 

Ongoing NMFS, 

ACCSTR 

 500 100 100 100 100 

3 211 Conduct periodic 

reviews of existing state and FWS criteria for sand placement projects and modify as necessary. 

Ongoing FWS-ES, 

FFWCC, GDNR, SCDNR, NCWRC, ADCNR 

COE, FDEP, SCDHEC, ACDEM, NCDENR 

40 20 0 0 0 

2 2121 Ensure all beach sand 

placement projects are in compliance with state and FWS criteria. 

Ongoing FWS-ES, 

FFWCC, GDNR, SCDNR, NCWRC, ADCNR 

COE, FDEP, SCDHEC, ACDEM, NCDENR 

500 100 100 100 100 

3 2122 Establish protocols for 

removing sand that is determined to have not met sand suitability requirements. 

3 COE, 

FDEP, SCDHEC, ACDEM, NCDENR 

FWS-ES, FFWCC, GDNR, SCDNR, NCWRC, ADCNR 

75 25 25 25 

3 2123 Evaluate the effects of 

dredging of nearshore ebb tidal shoals on adjacent nesting habitat. 

5 COE, 

FDEP, SCDHEC, ACDEM, NCDENR 

FWS-ES, FFWCC, GDNR, SCDNR, NCWRC, ADCNR 

125 25 25 25 25 

3 2131 Evaluate sand 

compaction levels on native beaches for all recovery units to determine thresholds for tilling. 

3 COE 150 50 50 50 

3 2132 Investigate alternative 

methods for monitoring sand compaction. 

3 COE 75 25 25 25 
III-9

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

2 2133 Implement tilling as a 

means of softening compacted beaches. 

Ongoing COE Sand 

Placement Project Sponsors 

TBD TBD TBD TBD TBD 

2 214 Implement escarpment 

leveling and/or profile adjustment on constructed beaches as needed. 

Ongoing COE Sand 

Placement Project Sponsors 

TBD TBD TBD TBD TBD 

2 215 Ensure sediment grain 

size, composition, sorting, and color are compatible with native beaches. 

Ongoing COE Sand 

Placement Project Sponsors 

TBD TBD TBD TBD TBD 

3 2161 Conduct research on 

contaminant levels of sediment sources and their effects on loggerheads. 

5 COE EPA TBD TBD TBD TBD TBD 

3 2162 Evaluate and revise, if 

necessary, current Federal guidelines for contaminant levels of sediment sources to ensure compatibility with loggerhead development. 

3 EPA COE, FWSES 125 50 50 25 

3 2163 Conduct statistically 

valid sampling of borrow sediments for contaminants (pre- and post-construction) and ensure sediment sources do not exceed existing Federal guidelines for contaminant levels. 

Ongoing COE Sand 

Placement Project Sponsors 

0 0 0 0 0 
III-10

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

2 217 Design and evaluate 

beach construction profiles to more closely mimic natural beaches. 

Ongoing COE, FDEP Sand 

Placement Project Sponsors 

500 100 100 100 100 

2 218 Re-establish natural 

dune structure and native vegetation during sand placement projects. 

Ongoing COE Sand 

Placement Project Sponsors 

TBD TBD TBD TBD TBD 

3 2191 Monitor suitability of 

post-construction beaches for nesting. 

Ongoing COE Academia, 

Sand Placement Project Sponsors 

TBD TBD TBD TBD TBD 

3 2192 Develop and maintain 

an inventory of beach and dune sand placement projects and periodically assess the cumulative effects of these projects on loggerhead nesting and hatchling production. 

Ongoing COE FDEP, 

GDNR, SCDHEC, NCDENR, ADEM 

170 50 50 10 10 

2 221 Categorize and 

inventory all beach armoring, shoreline stabilization structures, and all other barriers to nesting to establish baseline levels and develop a GIS. 

3 FWS-ES FFWCC, 

GDNR, SCDNR, NCWRC, ADCNR, FDEP, SCDHEC, NCDENR, ADEM 

600 200 200 200 
III-11

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

1 2221 Convene an expert 

panel to develop a strategy to strengthen and guide regulations to minimize the effects of coastal armoring on loggerheads and to ensure that the percentage of nesting beach free of any barriers to nesting is stable or increasing relative to baseline levels determined in 221. 

3 FWS-ES 125 50 50 25 

1 2222 Modify existing 

regulations or promulgate new regulations to implement the strategy developed in 2221. 

5 FDEP, 

GDNR, SCDHEC, NCDENR, ADEM 

FWS-ES 210 50 50 50 50 

1 2223 Ensure regulations 

governing placement and design of new coastal buildings and infrastructure eliminate any future need for coastal armoring. 

5 FDEP, 

GDNR, SCDHEC, NCDENR, ADEM 

FWS-ES 250 50 50 50 50 

2 2224 Require removal of 

failed or ineffective erosion control structures. 

Ongoing FDEP, 

GDNR, SCDHEC, NCDENR, ADEM 

FWS-ES 500 100 100 100 100 
III-12

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

3 2225 Prohibit recreational 

equipment on nesting beaches at night. 

5 FDEP, 

GDNR, SCDHEC, NCDENR, ADEM, Local Govts 

FWS-ES, FFWCC 

250 50 50 50 50 

3 2226 Evaluate the 

effectiveness of dune crossovers for protecting dunes and strengthen existing regulations or promulgate new regulations to minimize effects from dune crossovers. 

5 FDEP, 

FFWCC, GDNR, SCDHEC, SCDNR, NCDENR, NCWRC, ADEM, ADCNR 

FWS-ES, Academics 

250 50 50 50 50 

3 2227 Evaluate the 

effectiveness of sand fences for building beaches and strengthen existing regulations or promulgate new regulations for sand fence construction. 

5 FDEP, 

FFWCC, GDNR, SCDHEC, SCDNR, NCDENR, NCWRC, ADEM, ADCNR 

FWS-ES, Academics 

250 50 50 50 50 

1 2228 Ensure regulations 

pertaining to barriers to nesting are enforced. 

Ongoing FDEP, 

GDNR, SCDHEC, NCDENR, ADEM, Local Govts 

FWS-ES, FFWCC, SCDNR, NCWRC, ADCNR 

1500 300 300 300 300 
III-13

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

1 231 Maintain at least the 

current length and quality of protected nesting beach. 

Ongoing FWS-ES FWSRefuges, 

NPS, DOD, FDEP, GDNR, SCDHEC, NCDENR, ADCNR, Local Govts, NGOs, FPL 

100 20 20 20 20 

1 2321 Acquire additional 

beachfront and upland properties (undeveloped and developed) within the boundaries of the Archie Carr National Wildlife Refuge, Florida. 

Ongoing FWSRefuges, 

FDEP, Brevard County, Indian River County 

NGOs 50000 10000 10000 10000 10000 

1 2322 Acquire additional 

beachfront and upland properties (undeveloped and developed) on Hutchinson Island, Florida, and develop a plan to ensure longterm protection. 

Ongoing FWSRefuges, 

FDEP, St. Lucie County 

NGOs 15000+ 15000 TBD TBD TBD 
III-14

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

2 2323 Acquire additional 

beachfront and upland properties (undeveloped and developed) within the nesting range of the Peninsular Florida Recovery Unit and develop a plan to ensure long-term protection. 

Ongoing FDEP, 

Local Govts, 

FWSRefuges, NGOs 

TBD TBD TBD TBD TBD 

2 2324 Acquire additional 

beachfront and upland properties (undeveloped and developed) within the nesting range of the Northern Recovery Unit and develop a plan to ensure long-term protection. 

Ongoing GDNR, 

NCDENR, SCDNR 

FWSRefuges, NPS, Local Govts, NGOs 

TBD TBD TBD TBD TBD 

2 2325 Acquire additional 

beachfront and upland properties (undeveloped and developed) within the nesting range of the Northern Gulf of Mexico Recovery Unit and develop a plan to ensure long-term protection. 

Ongoing FWSRefuges, 

ADCNR, FDEP 

NPS, Local Govts, NGOs 

TBD TBD TBD TBD TBD 

3 2326 Acquire stormdamaged nesting 

beachfront and upland properties on loggerhead nesting beaches. 

Ongoing FEMA, 

FDEP, GDNR, SCDHEC, NCDENR, ADEM 

FWSRefuges, Local Govts, NGOs 

TBD TBD TBD TBD TBD 
III-15

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

2 241 Develop a model that 

describes the effects of sea level rise on loggerhead nesting beaches. 

4 NOAA, 

Academia 

FWS-ES, FDEP 

300 75 75 75 75 

1 242 Implement measures 

and develop agreements to reduce atmospheric greenhouse gasses. 

Ongoing EPA, 

DOE, DOS 

NOAA, FWS, State Resource Agencies 

TBD TBD TBD TBD TBD 

2 2511 Implement and enforce 

lighting ordinances on lands under local government jurisdiction. 

Ongoing Local 

Govts, Ports Authority 

 2000 400 400 400 400 

2 2512 Implement and enforce 

lighting management plans on all lands under state and Federal jurisdiction. 

Ongoing FWS-ES, 

NPS, DOD, FDEP, GDNR, SCDNR, NCDENR, ADCNR 

 250 50 50 50 50 

3 252 Evaluate the extent of 

hatchling disorientation on nesting beaches based on standardized surveys. 

Ongoing FWS-ES, 

FFWCC, GDNR, NCWRC, SCDNR, ADCNR 

FWSRefuges, FDEP, SCDPRT, NCDENR,NPS, DOD, Local Govts, NGOs, UCF, FPL 

250 50 50 50 50 
III-16

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

3 253 Prosecute individuals 

or entities responsible for nesting female or hatchling disorientation under the Endangered Species Act or appropriate state laws. 

Ongoing FWS-LE, 

FFWCC, GDNR, SCDNR, NCWRC, ADCNR 

 100 20 20 20 20 

3 261 Encourage the manual 

removal of manmade beach debris through regular coastal cleanup programs. 

Ongoing NGOs FWS, NPS, 

DOD, FDEP, GDNR, SCDNR, NCDENR, ADCNR, Local Govts 

125 25 25 25 25 

3 262 Remove exotic 

vegetation harmful to loggerheads on and adjacent to nesting beaches. 

Ongoing FDEP, 

GDNR, SCDNR, NCDENR, ADCNR 

FWS-ES, NPS, DOD, FPL, NGOs, Local Govts 

TBD TBD TBD TBD TBD 

2 271 Assess, categorize, and 

map neritic habitats used by loggerheads. 

10 NMFS, 

State Resource Agencies 

Academia 500 100 100 100 100 

3 2721 Assess the effects of 

bottom trawl and dredge fisheries on neritic habitats used by loggerheads. 

5 NMFS, 

State Resource Agencies 

FMCs, Academia, NGOs 

TBD TBD TBD TBD TBD 

3 2722 Assess the effects of 

eutrophication on neritic habitats used by loggerheads. 

10 EPA, State 

Resource Agencies 

Academia, NGOs, Local Govts 

TBD TBD TBD TBD TBD 

3 2723 Assess the effects of 

water management on neritic habitats used by loggerheads. 

10 EPA, State 

Resource Agencies 

Academia, Local Govts, NGOs 

TBD TBD TBD TBD TBD 
III-17

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

3 2724 Assess the effects of oil 

and gas production activities on neritic habitats used by loggerheads. 

10 MMS TBD TBD TBD TBD TBD 

3 2725 Assess the effects of 

channel dredging on neritic habitats used by loggerheads. 

10 COE TBD TBD TBD TBD TBD 

3 2726 Assess the effects of 

salvage operations on neritic habitats used by loggerheads. 

10 COE, State 

Resource Agencies 

 TBD TBD TBD TBD TBD 

3 2727 Assess the effects of 

other human activities on neritic habitats used by loggerheads. 

10 NMFS, 

State Resource Agencies 

COE, Local Govts 

TBD TBD TBD TBD TBD 

1 273 Develop and implement 

a strategy to protect and monitor neritic habitats used by loggerheads. 

5 NMFS, 

State Resource Agencies 

Academia, NGOs 

450 100 100 100 100 

2 281 Assess, categorize, and 

map oceanic habitats used by loggerheads. 

10 NMFS Academia 1000 200 200 200 200 

3 2821 Assess the effects of oil 

and gas activities on oceanic habitats used by loggerheads. 

10 MMS, 

NMFS 

Academia TBD TBD TBD TBD TBD 

3 2822 Assess the effects of 

marine debris on oceanic habitats used by loggerheads. 

10 NMFS, 

EPA 

Academia TBD TBD TBD TBD TBD 

3 2823 Assess the effects of 

other pollutants on oceanic habitats used by loggerheads. 

10 NMFS, 

EPA, MMS 

Academia TBD TBD TBD TBD TBD 
III-18

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

1 283 Develop and implement 

a strategy to protect and monitor oceanic habitats used by loggerheads. 

5 NMFS, 

DOS 

Academics, NGOs 

450 100 100 100 100 

2 29 Develop and maintain a 

comprehensive GIS database of neritic and oceanic habitats (used by loggerheads) and human activities that impact these habitats. 

5 NMFS, 

State Resource Agencies 

Academia 500 100 100 100 100 

1 31 Work with foreign 

nations to quantify and eliminate commercial and subsistence harvest. 

Ongoing NMFS, 

DOS 

Academia, FWS-ES, NGOs 

250 50 50 50 50 

3 32 Educate local 

communities in foreign nations on the benefits of sea turtle ecotourism as an alternative to harvest. 

Ongoing NMFS, 

DOS 

FWS-ES NGOs, Academia 

1500 300 300 300 300 

3 33 Develop and implement 

guidelines for public turtle walks that minimize disturbance to loggerheads. 

Ongoing FWS-ES FFWCC, 

GDNR, SCDNR, NCWRC, ADCNR 

125 25 25 25 25 

3 34 Minimize take of wild 

turtles for captive display. 

Ongoing FWS-ES NMFS, 

FFWCC, GDNR, SCDNR, NCWRC, ADCNR 

0 0 0 0 0 
III-19

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

2 411 Reduce the annual rate 

of mammalian predation to at or below 10% of nests within each recovery unit using ecologically sound predator control programs. 

Ongoing FFWCC, 

GDNR, SCDNR, NCWRC, ADCNR 

FWSRefuges, NPS, DOD, FDEP, NCDENR, Local Govts, NGOs, FPL 

3150 630 630 630 630 

3 412 Control fire ants on and 

adjacent to loggerhead nesting beaches. 

Ongoing FFWCC, 

GDNR, SCDNR, NCWRC, ADCNR 

FWSRefuges, NPS, DOD, FDEP, NCDENR, Local Govts, NGOs, FPL 

125 25 25 25 25 

3 421 Develop a condition 

index to allow rapid evaluation of physiological status. 

3 Academia NMFS, 

FWS-ES 

225 75 75 75 

3 422 Develop protocols for 

collecting, handling, and analyzing baseline blood chemistry parameters from wild loggerheads. 

3 Academia NMFS, 

FWS-ES, State Resource Agencies 

125 50 50 25 

3 423 Establish representative 

baseline blood chemistry parameters by sex, size class, season, and location. 

5 Academia NMFS, 

FWS-ES, State Resource Agencies 

500 100 100 100 100 

3 424 Establish representative 

baseline toxicological parameters by sex, size class, season, and habitat. 

10 NMFS, 

Academia 

NOS, FWSES, EPA, State Resource Agencies 

TBD TBD TBD TBD TBD 
III-20

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

3 425 Establish representative 

baseline levels of parasitic infection in wild turtles. 

10 Academia, 

NMFS 

FWS-ES, State Resource Agencies 

375 75 75 75 75 

3 426 Establish representative 

baseline levels of bacterial, fungal, and viral infections in wild turtles. 

10 Academia, 

NMFS 

FWS-ES, State Resource Agencies 

TBD TBD TBD TBD TBD 

2 43 Develop and implement 

a program to monitor loggerhead health at representative index in-water sites and index/standardized nesting beaches. 

Ongoing NMFS, 

FWS-ES, State Resource Agencies 

Academia TBD TBD TBD TBD TBD 

3 44 Evaluate the effects of 

harmful algal blooms on loggerhead health. 

10 FFWCC, 

NMFS, NOS 

Academia 500 100 100 100 100 

3 45 Investigate the lethal 

and sublethal role of contaminants. 

10 Academia, 

EPA 

NOS, NMFS, FWS-ES, USGSNWHC 

TBD TBD TBD TBD TBD 

3 46 Develop and implement 

protocols for handling turtles to limit transfer of disease. 

3 FWS-ES, 

NMFS 

Academia, Aquaria, State Resource Agencies 

125 50 50 25 

3 471 Develop and/or finalize 

protocols for the proper care and maintenance of loggerheads held in captivity. 

3 FWS-ES, 

NMFS 

FFWCC, Aquaria, Academia, State Resource Agencies 

125 50 50 25 
III-21

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

3 472 Develop protocols for 

transport and release of captive loggerheads. 

3 FWS-ES, 

NMFS 

FFWCC, Aquaria, Academia, State Resource Agencies 

-- -- -- -- 

3 473 Develop a manual for 

the assessment and treatment of loggerhead diseases and injuries. 

5 FWS-ES, 

NMFS 

FWS-ES, NMFS, Aquaria, Academia 

200 50 50 50 25 

3 474 Develop and maintain a 

list of veterinarians qualified to diagnose and treat health problems in loggerheads. 

3 State 

Resource Agencies 

FWS-ES, NMFS, Aquaria, Academia 

-- -- -- -- 

2 48 Develop a strategy to 

recognize, respond to, and investigate mass strandings, disease episodes, or unusual mortality events. 

3 NMFS NMFS, 

FWS-ES/ Refuges, NOS, Aquaria, Academia, State Resource Agencies 

125 50 50 25 

3 511 Develop and implement 

Federal regulations to ensure long-term protection of loggerheads and their habitats post-delisting. 

10 NMFS, 

FWS-ES 

State Resource Agencies 

TBD TBD TBD TBD TBD 

1 512 Ensure full and active 

enforcement of Federal regulations designed to protect loggerheads. 

Ongoing NMFS, 

FWS-ES, USCG 

State Resource Agencies 

10000 2000 2000 2000 2000 
III-22

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

1 513 Develop and/or 

maintain, implement, and enforce state and local legislation to protect loggerheads and their habitats. 

Ongoing State 

Resource Agencies, Local Govts 

 5000 1000 1000 1000 1000 

1 521 Assist foreign countries 

in developing national regulations to protect loggerheads and their habitats. 

10 FWS-ES, 

NMFS, DOS 

NGOs 1250 250 250 250 250 

1 522 Assist foreign countries 

with enforcement of national regulations to protect loggerheads. 

Ongoing DOS FWS-ES, 

NMFS, USCG 

2500 500 500 500 500 

2 531 Encourage nonsignatory nations of the 

western hemisphere to accede to the InterAmerican Convention for the Conservation and Protection of Marine Turtles. 

Ongoing DOS FWS-ES, 

NMFS 

250 50 50 50 50 
III-23

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

2 532 Encourage nonsignatory nations to 

accede to the Convention for the Protection and Development of the Marine Environment of the Wider Caribbean Region (Cartegena Convention), specifically the Protocol Concerning Specially Protected Areas and Wildlife in the Wider Caribbean (SPAW Protocol). 

Ongoing DOS FWS-ES, 

NMFS 

50 10 10 10 10 

2 533 Ensure the U.S. 

becomes a party to the United Nations Convention on the Law of the Sea and the Convention on Migratory Species. 

5 DOS NMFS, 

FWS-ES 

0 0 0 0 0 

3 6111 Evaluate the effects of 

nest management activities on nest productivity, hatchling fitness, and sex ratios and develop scientifically based standardized protocols for nest management. 

5 FFWCC, 

GDNR, SCDNR, NCWRC, ADCNR, FWS-ES 

Academia, FWSRefuges, FDEP, SCDPRT, NCDENR, NPS, DOD, Local Govts, NGOs 

850 250 250 250 50 
III-24

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

3 6112 Implement 

scientifically based standardized protocols for nest management. 

Ongoing FFWCC, 

GDNR, SCDNR, NCWRC, ADCNR, FWS-ES 

FWSRefuges, FDEP, SCDPRT, NCDENR, NPS, DOD, Local Govts, NGOs, Academia 

250 50 50 50 50 

3 6113 Use the least 

manipulative method to protect nests. 

Ongoing FFWCC, 

GDNR, SCDNR, NCWRC, ADCNR, FWS-ES 

FWSRefuges, FDEP, SCDPRT, NCDENR, NPS, DOD, Local Govts, NGOs, Academia 

0 0 0 0 0 

3 6114 Discontinue the use of 

hatcheries as a nest management technique. 

5 FFWCC, 

GDNR, SCDNR, NCWRC, ADCNR, FWS-ES 

FWSRefuges, FDEP, SCDPRT, NCDENR, NPS, DOD, Local Govts, NGOs, Academia 

0 0 0 0 0 

3 6121 Prohibit nighttime 

driving on beaches during the loggerhead nesting season. 

Ongoing FWS-ES, 

GDNR, Local Govts, NPS 

FFWCC, FDEP, SCDNR, NCWRC, NCDENR, ADCNR 

TBD TBD TBD TBD TBD 
III-25

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

3 6122 Ensure that the linear 

kilometers of nesting beach where vehicular traffic is permitted does not increase above 2006 levels. 

Ongoing FWS-ES, 

GDNR, NPS, Local Govts 

FFWCC, FDEP, SCDNR, NCWRC, NCDENR, ADCNR 

50 10 10 10 10 

3 6123 Manage daytime 

driving to minimize impacts to loggerheads. 

Ongoing FWS-ES, 

NPS, GDNR, Local Govts 

FFWCC, FDEP, SCDNR, NCWRC, NCDENR, ADCNR 

TBD TBD TBD TBD TBD 

3 613 Strengthen existing 

regulations or promulgate new regulations to manage mechanical beach cleaning on nesting beaches. 

3 FDEP, 

GDNR, SCDHEC, NCDENR, ADEM 

FWS-ES, FFWCC, SCDNR, NCWRC, ADCNR, Local Govts 

60 25 25 10 

3 6141 Evaluate the extent and 

effects of harassment of nesting females and hatchlings and develop management recommendations. 

3 FWS-ES, 

FFWCC, GDNR, SCDNR, NCWRC, ADCNR, 

Academia 300 100 100 100 

3 6142 Conduct public 

education campaigns to minimize harassment of nesting females and hatchlings. 

Ongoing FWS-ES, 

FFWCC, GDNR, SCDNR, NCWRC, ADCNR, NGOs 

Local Govts, NGOs 

500 100 100 100 100 
III-26

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

3 6143 Increase the number of 

interpretive turtle walks to meet demand and minimize overall disturbance to nesting females and hatchlings. 

Ongoing FWS-ES, 

FFWCC, GDNR, SCDNR, NCWRC, ADCNR, NGOs 

NPS, FDEP, NCDENR, Local Govts 

0 0 0 0 0 

3 6144 Enforce laws to 

minimize harassment of nesting females and hatchlings. 

Ongoing FWS-LE, 

FFWCC, GDNR, SCDNR, NCWRC, ADCNR 

NPS, DOD, FDEP, NCDENR 

-- -- -- -- -- 

3 615 Develop and enforce 

guidelines for special events on the beach to minimize impacts on nesting females, nests, and hatchlings. 

Ongoing FDEP, 

GDNR, ADEM, SCDHEC, Local Govts 

FWS, NPS, FFWCC, SCDNR, NCWRC, NCDENR, ACDNR 

300 75 75 50 50 

3 616 Minimize the impacts 

of military activities on nesting females, nests, and hatchlings. 

Ongoing DOD FWS-ES 125 25 25 25 25 

3 6171 Conduct a risk 

management assessment of oil spill effects on nesting beaches. 

5 NOAA, 

USCG 

MMS, EPA TBD TBD TBD TBD TBD 

3 6172 Ensure that oil spill 

response plans exist and adequately protect all nesting beaches. 

Ongoing USCG MMS, 

FWS-ES 

125 25 25 25 25 
III-27

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

3 6181 Conduct all nonemergency coastal 

construction activities outside the main portion of the nesting season to eliminate impacts on nesting females, nests, and hatchlings. 

Ongoing FDEP, 

GDNR, SCDHEC, NCDENR, ADEM 

FWS-ES, FFWCC, SCDNR, NCWRC, ADCNR, Local Govts 

0 0 0 0 0 

3 6182 Strengthen existing 

regulations or promulgate new regulations to minimize impacts from emergency construction activities during the nesting season on nesting females, nests, and hatchlings. 

3 FDEP, 

GDNR, SCDHEC, NCDENR, ADEM 

FWS-ES, FFWCC, SCDNR, NCWRC, ADCNR, Local Govts 

60 25 25 10 

3 6183 Develop and implement 

ordinances to eliminate the effects of stormwater outfalls and swimming pool drainage on nesting females, nests, and hatchlings. 

3 Local 

Govts, FDEP 

 60 25 25 10 

3 619 Ensure that law 

enforcement activities eliminate poaching of eggs and nesting females. 

Ongoing FWS-LE, 

FFWCC, GDNR, SCDNR, NCWRC, ADCNR 

NPS, DOD, FDEP, NCDENR 

-- -- -- -- -- 

2 6211 Describe and 

characterize domestic commercial gillnet fisheries. 

2 NMFS State 

Resource Agencies, ASMFC, GSMFC 

500 250 250 
III-28

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

2 6212 Integrate information 

gathered in 6211 with turtle distribution data. 

3 NMFS State 

Resource Agencies, Academia 

-- -- -- -- 

2 6213 Implement observer 

programs to determine bycatch levels and identify key characteristics of domestic commercial gillnet fisheries that affect bycatch levels. 

5 NMFS, 

State Resource Agencies 

 2500 500 500 500 500 

1 6214 Implement measures to 

minimize bycatch in large mesh gillnet fisheries. 

3 NMFS, 

FMCs, State Resource Agencies 

 150 50 50 50 

1 6215 Implement measures to 

minimize bycatch in other gillnet fisheries as appropriate. 

3 NMFS, 

FMCs, State Resource Agencies 

 150 50 50 50 

3 6221 Describe and 

characterize domestic commercial and recreational shrimp trawl fisheries. 

2 NMFS State 

Resource Agencies, ASMFC, GSMFC 

-- -- -- 

3 6222 Integrate information 

gathered in 6221 with turtle distribution data. 

2 NMFS State 

Resource Agencies, Academia 

-- -- -- -- 
III-29

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

2 6223 Increase observer 

coverage to a statistically robust level to adequately monitor bycatch levels in the domestic commercial shrimp fishery and modify TED regulations if necessary. 

5 NMFS, 

State Resource Agencies 

 5000 1000 1000 1000 1000 

2 6224 Promulgate regulations 

to require TEDs in all trynets in the domestic commercial shrimp fishery. 

2 NMFS, 

State Resource Agencies 

 50 25 25 

3 6225 Continue efforts to 

educate domestic commercial shrimp fishers on the proper installation and use of larger-opening TEDs. 

Ongoing NMFS State 

Resource Agencies, Sea Grant 

500 100 100 100 100 

2 6226 Investigate the 

physiological effects of multiple captures and exclusions of loggerheads in domestic commercial shrimp trawls equipped with TEDs. 

3 NMFS Academia, 

State Resource Agencies 

750 250 250 250 

1 6227 Monitor and reduce 

effort in the domestic commercial shrimp trawl fishery to minimize loggerhead bycatch. 

5 NMFS SAFMC, 

GMFMC, State Resource Agencies 

TBD TBD TBD TBD TBD 
III-30

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

2 6228 Investigate turtle 

exclusion rates for soft TEDs under field conditions using videography. 

3 NMFS 450 150 150 150 

2 6229 Implement statistically 

valid observer programs to determine bycatch levels in domestic commercial skimmer trawl fisheries

and require TEDs if necessary. 

2 NMFS, 

State Resource Agencies 

 600 300 300 

2 6231 Describe and 

characterize domestic commercial non-shrimp trawl fisheries. 

2 NMFS State 

Resource Agencies, ASMFC, GSMFC 

-- -- -- 

2 6232 Integrate information 

gathered in 6231 with turtle distribution data. 

2 NMFS State 

Resource Agencies, Academia 

-- -- -- -- 

2 6233 Implement statistically 

valid observer programs to determine bycatch levels in domestic commercial non-shrimp trawl fisheries. 

4 NMFS, 

State Resource Agencies 

 2000 500 500 500 500 

1 6234 Implement seasonal 

large-opening TED regulations for domestic commercial non-shrimp trawl fisheries operating from Cape Hatteras, North Carolina, north to Cape Cod, Massachusetts. 

3 NMFS, 

State Resource Agencies 

MAFMC, NEFMC, 

150 50 50 50 
III-31

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

1 6235 Promulgate regulations 

to require TEDs in domestic commercial flynet trawl fisheries. 

3 NMFS, , 

State Resource Agencies 

SAFMC, GOMFMC 

150 50 50 50 

1 6236 Promulgate regulations 

to require largeopening TEDs in all domestic commercial non-shrimp trawl fisheries south of Cape Hatteras, North Carolina. 

3 NMFS, 

State Resource Agencies 

SAFMC, GOMFMC, 

150 50 50 50 

2 6241 Describe and 

characterize domestic commercial pelagic and demersal longline fisheries. 

2 NMFS State 

Resource Agencies 

-- -- -- 

2 6242 Integrate information 

gathered in 6241 with turtle distribution data. 

2 NMFS State 

Resource Agencies, Academia 

-- -- -- -- 

2 6243 Maintain and/or 

increase observer coverage to a statistically robust level to adequately monitor bycatch levels in domestic commercial pelagic and demersal longline fisheries. 

3 NMFS State 

Resource Agencies 

3000 1000 1000 1000 
III-32

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

2 6244 Continue to conduct 

focused experiments on domestic commercial longline gear and fishing practices to minimize loggerhead interactions and secondarily to minimize postinteraction mortality. 

5 NMFS Academia, 

Fishing Industry, NGOs 

TBD TBD TBD TBD TBD 

1 6245 Investigate the 

effectiveness of timearea closures to minimize loggerhead interactions in domestic commercial pelagic and demersal longline fisheries. 

3 NMFS FMCs, 

Academia 

300 100 100 100 

1 6246 Promulgate regulations 

to implement proven measures that minimize loggerhead interactions with commercial pelagic and demersal longline fisheries. 

3 NMFS FMCs 150 50 50 50 

1 6247 Develop and implement 

effective approaches to enforcing longline regulations in U.S. territorial waters, the U.S. EEZ, and on the high seas. 

Ongoing NMFS, 

DOS 

FMCs, USCG 

1250 250 250 250 250 

3 6248 Promote the use of safe 

handling practices and careful release tools in domestic commercial pelagic and demersal longline fisheries. 

Ongoing NMFS FMCs 250 50 50 50 50 
III-33

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

2 6251 Describe and 

characterize pot/trap fisheries. 

2 NMFS State 

Resource Agencies, ASMFC, GSMFC 

-- -- -- 

2 6252 Integrate information 

gathered in 6251 with turtle distribution data. 

2 NMFS, 

Academia 

State Resource Agencies, 

-- -- -- -- 

2 6253 Develop gear 

modifications to prevent entanglement of loggerheads in pot/trap lines. 

3 NMFS Fishing 

Industry 

750 250 250 250 

2 6254 Promulgate regulations 

to incorporate modifications to whelk pot bridles to prevent loggerhead entanglement. 

3 NMFS State 

Resource Agencies 

125 50 50 25 

2 6255 Promulgate appropriate 

regulations to reduce incidental capture of loggerheads in pots/traps. 

3 NMFS State 

Resource Agencies 

125 50 50 25 

3 6256 Require identification 

on pot/trap gear. 

3 NMFS, 

State Resource Agencies 

FMCs 125 50 50 25 

2 6261 Describe and 

characterize domestic commercial dredge fisheries. 

2 NMFS State 

Resource Agencies, ASMFC, GSMFC 

-- -- -- 

2 6262 Integrate information 

gathered in 6261 with turtle distribution data. 

2 NMFS, 

Academia 

State Resource Agencies 

-- -- -- -- 
III-34

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

2 6263 Evaluate the 

effectiveness of gear modifications developed to reduce loggerhead bycatch in the domestic commercial scallop dredge fishery. 

2 NMFS Fishing 

Industry 

400 200 200 

2 6264 Promulgate regulations 

that reduce loggerhead bycatch and mortality in the domestic commercial scallop dredge fishery. 

2 NMFS 100 50 50 

3 6265 Investigate bycatch and 

mortality of loggerheads in commercial whelk dredge fisheries. 

3 NMFS, 

State Resource Agencies 

 750 250 250 250 

2 6266 Investigate bycatch and 

mortality of loggerheads in commercial surf clam dredge fisheries. 

3 NMFS State 

Resource Agencies 

300 100 100 

3 6271 Describe and 

characterize other domestic commercial fisheries. 

2 NMFS State 

Resource Agencies, ASMFC, GSMFC 

-- -- -- 

3 6272 Integrate information 

gathered in 6271 with turtle distribution data. 

2 NMFS, 

Academia 

State Resource Agencies 

-- -- -- -- 
III-35

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

3 6273 Investigate bycatch and 

mortality of loggerheads in other domestic commercial fisheries and implement bycatch reduction measures as necessary. 

2 NMFS, 

Academia 

State Resource Agencies 

750 0 0 250 250 

3 6274 Ensure that no increase 

in effort over 2003 levels occurs in the Sargassum fishery to minimize loggerhead bycatch. 

Ongoing NMFS SAFMC 0 0 0 0 0 

1 628 Enforce domestic 

commercial fishery regulations to minimize loggerhead bycatch. 

Ongoing NMFS, 

USCG, State Resource Agencies 

 -- -- -- -- -- 

2 631 Disseminate results of 

bycatch reduction experiments and transfer demonstrated bycatch reduction technologies to foreign nations. 

Ongoing DOS, 

NMFS 

NGOs 1500 300 300 300 300 

2 632 Encourage and assist 

foreign nations in collecting data on loggerhead bycatch via observer programs for commercial fisheries where bycatch levels are undocumented. 

Ongoing DOS, 

NMFS 

NGOs 1250 250 250 250 250 
III-36

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

1 633 Encourage and assist 

foreign nations to develop, implement, and enforce fishery regulations to minimize loggerhead bycatch in commercial pelagic longline fisheries. 

Ongoing DOS, 

NMFS 

NGOs 1250 250 250 250 250 

1 634 Encourage and assist 

foreign nations to develop, implement, and enforce fishery regulations to minimize loggerhead bycatch in commercial trawl fisheries. 

Ongoing DOS, 

NMFS 

NGOs 1250 250 250 250 250 

1 635 Encourage and assist 

foreign nations to develop, implement, and enforce fishery regulations to minimize loggerhead bycatch in commercial gillnet fisheries. 

Ongoing DOS, 

NMFS 

NGOs 1250 250 250 250 250 

2 636 Encourage and assist 

foreign nations to develop, implement, and enforce fishery regulations to minimize loggerhead bycatch in other commercial fisheries. 

Ongoing DOS, 

NMFS 

NGOs 1250 250 250 250 250 

2 637 Develop economic 

incentives to reduce fishery interactions and mortality of loggerheads in foreign high seas fisheries. 

Ongoing DOS, 

NMFS 

 TBD TBD TBD TBD TBD 
III-37

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

1 638 Encourage ICCAT, 

Canada, Mexico, and the European Union to implement standards for collecting loggerhead bycatch information and requirements to minimize loggerhead bycatch. 

5 DOS, 

NMFS 

 0 0 0 0 0 

3 641 Assess loggerhead diets 

and food web linkages in neritic and oceanic habitats. 

10 Academia NMFS, 

State Resource Agencies, 

TBD TBD TBD TBD TBD 

2 642 Assess and minimize 

effects of commercial harvest of loggerhead prey species. 

10 NMFS, 

State Resource Agencies 

FMCs, Academia 

TBD TBD TBD TBD TBD 

2 643 Assess effects of 

habitat alteration from commercial fisheries on distribution and abundance of loggerhead prey species. 

10 NMFS, 

State Resource Agencies 

FMCs, Academia 

TBD TBD TBD TBD TBD 

2 651 Determine frequency of 

marine debris ingestion and entanglement by loggerheads in neritic and oceanic habitats. 

5 NMFS, 

State Resource Agencies, Academia 

 500 100 100 100 100 

2 652 Evaluate the sublethal 

effects of marine debris ingestion and entanglement on loggerheads. 

5 NMFS, 

State Resource Agencies, Academia 

 TBD TBD TBD TBD TBD 
III-38

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

2 653 Enforce the 

International Convention for the Prevention of Pollution from Ships (MARPOL). 

Ongoing USCG DOS TBD TBD TBD TBD TBD 

3 654 Explore feasibility and 

provide incentives to reduce the amount of abandoned recreational and commercial fishing gear that causes loggerhead injury and mortality. 

Ongoing NMFS Academia, 

NGOs, USCG, State Resource Agencies 

TBD TBD TBD TBD TBD 

3 655 Explore feasibility and 

provide incentives to reduce the amount of non-fisheries related marine debris that causes loggerhead injury and mortality. 

Ongoing NMFS Academia, 

NGOs, USCG, State Resource Agencies 

TBD TBD TBD TBD TBD 

3 656 Maintain or implement 

marine debris cleanup programs in coastal waters. 

Ongoing State 

Resource Agencies, Local Govts 

NOAA, USCG, NGOs 

375 75 75 75 75 

2 661 Develop a 

comprehensive GIS database to assess vessel interactions with loggerheads. 

5 NMFS, 

State Resource Agencies 

USCG, Academics, DOD 

250 50 50 50 50 

1 662 Develop and implement 

a strategy to reduce vessel interactions with loggerheads. 

5 NMFS, 

State Resource Agencies 

DOD, USCG 

500 100 100 100 100 
III-39

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

3 671 Assess effects of new 

technologies for channel dredge equipment on loggerhead captures. 

3 COE NMFS TBD TBD TBD TBD 

2 672 Incorporate effective 

channel dredge equipment modifications into future operations. 

Ongoing COE NMFS TBD TBD TBD TBD TBD 

2 673 Maintain current 

requirements for channel dredging activities in the southeast U.S. Atlantic and Gulf of Mexico and evaluate whether additional measures are required to minimize loggerhead mortality. 

Ongoing COE, 

NMFS 

State Resource Agencies 

0 0 0 0 0 

2 674 Implement regional 

requirements for channel dredging activities north of North Carolina to minimize loggerhead mortality. 

3 COE, 

NMFS 

State Resource Agencies 

0 0 0 0 

3 711 Develop a video about 

the impacts of beachfront lighting on loggerheads and ways to minimize impacts. 

3 FWS-ES FFWCC, 

GDNR, SCDNR, NCWRC, ADCNR, NGOs 

150 50 50 50 
III-40

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

3 712 Maintain websites with 

comprehensive information about loggerheads. 

Ongoing FWS-ES, 

NMFS, State Resource Agencies, Academia, NGOs 

 500 100 100 100 100 

3 713 Develop an educational 

curriculum for students and the public about loggerhead demography and ecological roles. 

3 Academia, 

NGOs 

FWS-ES, NMFS, State Resource Agencies 

225 75 75 75 

3 714 Use computer gaming 

technologies to engage young people in sea turtle conservation. 

3 NGOs 150 50 50 50 

3 72 Facilitate international 

scientific communication and information sharing. 

Ongoing FWS-ES, 

NMFS, Academia, NGOs 

 250 50 50 50 50 

3 73 Ensure facilities 

permitted to hold and display captive loggerheads have appropriate informational displays. 

Ongoing FWS-ES, 

FFWCC, GDNR, SCDNR, NCWRC, ADCNR 

Aquaria, NGOs 

0 0 0 0 0 

3 74 Ensure standard criteria 

and recommendations for sea turtle nesting interpretive walks are followed. 

Ongoing FFWCC, 

GDNR, SCDNR, NCWRC, ADCNR 

FWS-ES 0 0 0 0 0 

3 75 Develop guidelines for 

and encourage interpretive daytime turtle walks. 

3 FFWCC, 

GDNR, SCDNR, NCWRC, ADCNR 

FWS-ES 15 5 5 5 
III-41

IMPLEMENTATION SCHEDULE

Recovery Plan for the Northwest Atlantic Population of the Loggerhead Sea Turtle

Responsible Party Cost Estimate by FY (by $1,0

Priority Action Number Action Description Action Duration (Years) Lead Others Total Cost ($1000s) for FY1-FY5 FY1 FY2 FY3 FY4 

3 76 Place educational signs 

at public access points on nesting beaches and points of access to the marine environment. 

Ongoing FWSRefuges, 

NPS, FFWCC, FDEP, GDNR, SCDNR, NCWRC, NCDENR, ADCNR, Local Govts, NGOs 

 125 25 25 25 25 

2 77 Conduct a contingent 

valuation study to measure the economic value of sea turtle related ecotourism. 

3 Academia FWS-ES, 

NMFS 

150 50 50 50 
III-42
IV-1

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IV-42
V-1

PART V. APPENDICES 
V-2
V-3

APPENDIX 1: LOGGERHEAD THREATS ANALYSIS

A comprehensive assessment of recovery plans indicated that the analysis of threats has received 

insufficient attention (Clark et al. 2002) and that this lack of knowledge regarding the nature of 

threats facing a species is likely to contribute to the failure of recovery plans (Lawler et al. 

2002). Based on these assessments, the Loggerhead Recovery Team undertook a detailed 

analysis of threats to assist in prioritizing recovery actions. The following steps describe the 

process used to identify, categorize, quantify, and prioritize threats to the Northwest Atlantic 

population of the loggerhead. The annotated threats tables are posted on the NMFS Office of 

Protected Resources Recovery Plan website 

[http://www.nmfs.noaa.gov/pr/recovery/plans.htm#turtles]. 

(1) Threats affecting loggerheads are often specific to life stages and the habitats in which 

they occur. The Team identified and evaluated eight life stages (see Figure 8) in the 

threats analysis: egg, hatchling, hatchling swim frenzy and transitional stage, juvenile 

oceanic stage, juvenile neritic stage, adult oceanic stage, adult neritic stage, and nesting 

female. 

(2) The three ecosystems inhabited by loggerheads (terrestrial, neritic, and oceanic) were 

then associated with the life stages occurring in those ecosystems as the first step in 

developing the threats analysis matrix as shown: 

Lifestage Ecosystem 

Nesting female Terrestrial Zone 

Egg Terrestrial Zone 

Hatchling stage Terrestrial Zone 

Hatchling swim frenzy, 

transitional stage Neritic Zone 

Juvenile stage Oceanic Zone 

Adult stage Oceanic Zone 

Juvenile stage Neritic Zone 

Adult stage Neritic Zone 

(3) All identified threats to the Northwest Atlantic population of the loggerhead sea turtle 

were grouped into 7 categories (see Table A1-1): fisheries bycatch, resource use [nonfisheries], construction and development, ecosystem alterations, pollution, species 

interactions, and other factors. 

(4) To facilitate quantifying and presenting the threats affecting the Northwest Atlantic 

population of the loggerhead sea turtle, the three elements (life stage, ecosystem, and 

specific categories of threats) were combined into a matrix using MS Excel (Table A1-2). 

A separate worksheet was developed for each of the 7 threat categories (see Table A1-1) 

with each specific threat within the threat categories identified as a separate column. 
V-4

(5) Annual mortality for each life stage/ecosystem for each specific threat was estimated as a 

“category” of mortality using a color-coded log10 scale (Table A1-3). The log midpoint 

for that color-coded category was used for calculations of the annual mortality (see #9 

and #10 below) to be consistent with the logarithmic scale of categories of mortality. 

When quantitative data were not available, the Team assigned a category of mortality 

based on best available information. The <COMMENT> feature of Excel was used to 

document the data source, calculations, and justification for each estimate of mortality 

presented in each cell of the matrix. The annotated threats tables with <COMMENT>

fields are posted on the NMFS Office of Protected Resources Recovery Plan website 

[http://www.nmfs.noaa.gov/pr/recovery/plans.htm#turtles]. 

The Team identified a number of threats where mortality has been documented or is 

likely to occur. However, for these threats, data are insufficient at this time to allow for 

an estimation of mortality. For these threats where mortality is known but not quantified, 

the cell is shaded gray and assigned a value of 1 (= annual mortality of 1 individual in 

that category) so that these potentially important threats would appear in the summary 

tables. 

(6) For each threat category, the total annual mortality for each life stage/ecosystem for all 

specific threats within that threat category was calculated by summing across the row 

(see column “Sum” in Table A1-4). To compare annual mortality among life stages, the 

annual mortality for each life stage was adjusted by the reproductive value of each life 

stage. This adjustment is necessary because some individuals in a population are more 

“valuable” than others in terms of the number of offspring they are expected to produce. 

An individual’s potential for contributing offspring to future generations is its 

reproductive value (RV, Table A1-5). The reproductive values were developed using a 

stage-based demographic model (see #7 below) for the Northwest Atlantic loggerhead 

sea turtle population (Table A1-6; M. Snover, unpublished data). The reproductive 

values were converted to “relative reproductive values” based on the reproductive value 

of a nesting female, which is 1 (Table A1-5). The summed annual mortality for each life 

stage/ecosystem for all specific threats within a threat category was adjusted by the 

relative reproductive value for each life stage in the column “Total Estimated Adjusted 

Annual Mortality (number of adult females)” (see Table A1-4). 

Several assumptions were made in calculating the relative reproductive values and need 

to be recognized when interpreting the results of this threats analysis. Table A1-6 

suggests that there is a knife-edge ontogenetic change from the oceanic juvenile stage to 

the neritic juvenile stage. In reality, this ontogenetic change occurs over ages 7-12 

(Bjorndal et al. 2000, 2003a). In addition, the neritic juvenile stage spans years 8-33, 

which combines small and large juveniles into this single life stage and results in an 

overestimate of adjusted mortality for threats affecting small juveniles and an 

underestimate of adjusted mortality for threats affecting large juveniles. 

(7) The stage-based demographic model that was used to develop the reproductive values 

had the following parameters: 
V-5

We assumed 34 years to first reproduction, a total of 7 years in the oceanic stage 

(Bjorndal et al. 2000), with the first year identified as hatchlings. For survival rates we 

followed NMFS (2001) with adult annual survival rate = 0.812, neritic juvenile annual 

survival rate = 0.893, and oceanic juvenile annual survival rate was adjusted to 0.725 to 

result in λ = 0.98. For the first year survival rate, we used the smallest value reported for 

potential oceanic annual survival rates for small, similar-sized Kemp’s ridleys, 0.25 

(Heppell et al. 2005). Fecundity values were 4.1 nests per year, 115 eggs per nest, and a 

0.50 sex ratio (NMFS 2001). NMFS (2001) used a nest survival rate of 0.675 which is 

the value from Wassaw Island, Georgia. As this beach is monitored and protected, we 

assumed a lower value would be more representative of the entire nesting region and used 

the value of 0.50. An age-based matrix model was used that cycled adult females 

between breeding and nonbreeding years (NMFS 2001, Heppell et al. 2003b). The 

matrix differed slightly from those of NMFS (2001) and Heppell et al. (2003b) in that we 

did not incorporate first year survival into the fecundity (i.e., we used a post-breed rather 

than a pre-breed model). 

(8) The threats tables for each of the threats categories are presented on the NMFS Office of 

Protected Resources Recovery Plan website 

[http://www.nmfs.noaa.gov/pr/recovery/plans.htm#turtles; also see Appendix 2]. 

(9) Two types of summary tables were developed. First, a summary table was developed by 

combining the row totals for the specific threats within a threat category adjusted for 

relative reproductive values (step #6 above), for each of the 7 threat categories (Table 

A1-7). Values are not presented in this summary table, only categories of annual 

estimates of mortality based on the color-coded log scale. Summary Table A1-7 presents 

the relative importance of each threat category by life stage/ecosystem. 

(10) A second summary table was developed to present the annual mortality for each specific 

threat within a threat category summed for all life stages/ecosystems and adjusted for 

relative reproductive values for each life stage/ecosystem (Table A1-8). 

(11) The summary tables allowed the Recovery Team to evaluate the relative importance of 

each threat category by life stage/ecosystem and by specific threat. The Recovery Team 

used these summary tables to identify and prioritize recovery actions (see Recovery 

Narrative and Implementation Schedule). 

(12) In addition to prioritizing recovery actions, the summary tables identify gaps in our 

knowledge (gray-shaded cells) where further research is needed. Although these grayshaded cells could not be quantified, they may represent significant threats to the 

recovery of the Northwest Atlantic population of the loggerhead sea turtle. 

 

(13) Sublethal effects have been identified for certain threats and life stages and are identified 

by stippling in the appropriate cells of the threats tables. These sublethal effects are 

likely to affect individual fitness (e.g., reduced somatic growth, egg production, hatchling 

production, nesting range, foraging range). 
V-6

Table A1-1. Threat categories and description. 

Category Threat Description 

Bottom trawl Includes bottom trawl fisheries for blue 

crab, flounder, general finfish, scallop, 

shrimp, whelk, and the North Carolina 

flynet fishery for weakfish 

Top/midwater trawl Includes trawls for sargassum and 

cannonball jellyfish 

Dredge Includes dredge fisheries for scallops 

and whelks 

Pelagic longline Includes longline fisheries for shark, 

swordfish, tuna, and wahoo 

Demersal longline Includes longline fisheries for black 

scabbard and shark 

Demersal, large mesh gillnet Includes gillnet fisheries for black drum, 

dogfish, monkfish, shark, and southern 

flounder 

Demersal, small mesh gillnet Includes gillnet fisheries for general 

finfish 

Drift gillnet Includes drift gillnet fisheries for shark, 

swordfish, and tuna 

Pound nets and weirs 

Pot/trap fisheries Includes pot fisheries for blue crab, 

lobster, stone crab, and whelk 

Haul seine 

Channel net 

Purse seine Includes purse seines for menhaden and 

tuna 

Other hook and line 

(recreational) 

Fisheries Bycatch 

Other hook and line 

(commercial) 

Includes commercial hook and line 

fisheries for snapper/grouper, Gulf reef 

fish, king and Spanish mackerel, and 

sharks 
V-7

Table A1-1. Threat categories and description, continued. 

Category Threat Description 

Legal harvest 

Illegal harvest 

Oil and gas activities 

Vessel strikes 

Beach cleaning 

Human presence 

Recreational beach 

equipment 

Beach vehicular driving 

Power generating activities 

Conservation/research 

activities 

Includes harassment of nesting females 

and hatchlings, handling of eggs, etc. 

Military activities 

Resource Use 

(non-fisheries) 

Salvage Operations 

Beach sand placement Includes beach nourishment, beach 

restoration, and inlet sand bypassing 

Beach armoring Includes bulkheads, seawalls, soil 

retaining walls, rock revetments, 

sandbags, and geotextile tubes 

Other shoreline stabilizations Includes groins, jetties, mesh groins 

(nets), and offshore breakwaters 

Sand fences 

Dredging 

Stormwater outfalls 

Coastal construction Refers to buildings on the coast 

Channel blasting 

Construction and 

Development 

(Although light 

pollution is 

associated with 

construction and 

development, that 

threat is captured 

under the 

“Pollution” 

category.) 

Bridge blasting 

Trophic changes from 

fishing 

Refers to trophic changes from fishingrelated activities (e.g., bottom trawling) 

Trophic changes from 

benthic habitat alteration 

Beach erosion (washouts) 

and accretion 

Aquaculture 

Ecosystem 

Alterations 

Eutrophication 
V-8

Table A1-1. Threat categories and description, continued. 

Category Threat Description 

Marine debris ingestion 

Marine debris entanglement 

in derelict fishing gear 

Marine debris entanglement 

in non-fishing gear 

Beach debris Includes large items that can impede or 

trap hatchlings and/or nesting females 

Oil pollution 

Light pollution 

Noise pollution 

Thermal pollution Includes thermal pollution from power 

plants 

Pollution 

Chemical pollution 

Predation 

Disease and parasites 

Harmful algal blooms 

Predation by exotic species 

Species Interactions 

Exotic dune and beach 

vegetation 

Climate change 

Natural catastrophes 

Cold water 

Other Factors 

Other (egg stage only) Includes root damage, disease events, 

infertile eggs, relocation mortality, and 

inundation 
V-9

Table A1-2. Threats matrix. 

Life Stage Ecosystem Threats 

Nesting female Terrestrial 

Zone 

Egg Terrestrial 

Zone 

Hatchling stage Terrestrial 

Zone 

Hatchling swim frenzy, 

transitional stage Neritic Zone 

Juvenile stage Oceanic Zone 

Adult stage Oceanic Zone 

Juvenile stage Neritic Zone 

Adult stage Neritic Zone 
V-10

Table A1-3. Key used to assign estimated annual mortality to each threat category. 

Estimated Annual Mortality Color 

Code Value

No evidence of mortality, based on best available 

information

Sub-lethal effects occur at this stage and may result in 

reduced fitness (e.g., reduced somatic growth rates, 

reduced hatchling production, reduced prey abundance, 

reduced quality of nesting and/or foraging habitats)

> 0

Mortality has been documented or is likely to occur; 

however, data are insufficient to estimate mortality

1

1-10 3

11-100 30

101-1000 300

1001-10,000 3,000

10,001-100,000 30,000

100,001-1,000,000 300,000

KEY
V-11

Table A1-4. Estimated annual mortality calculations. 

LIFE STAGE ECOSYSTEM TRAWL (BOTTOM) TRAWL (TOP/ MID- WATER) DREDGE FISHERIES LONGLINE (PELAGIC) LONGLINE (DEMER-SAL) GILLNET (DEMER-SAL, LG. MESH) GILLNET (DEMER-SAL, SM. MESH) GILLNET (DRIFT) POUND NETS AND WEIRS POT/TRAP FISHERIES HAUL SEINES CHANNEL NET PURSE SEINE OTHER HOOK & LINE (RECREA- TIONAL) OTHER HOO

& LINE (COM

ERCIAL) 

Nesting female Terrestrial Zone 

Egg Terrestrial Zone 

Hatchling stage Terrestrial Zone 

Swim frenzy, 

transitional stage Neritic Zone 1 

Juvenile stage Oceanic Zone 30,000 1 1 

Adult stage Oceanic Zone 1 1 

Juvenile stage Neritic Zone 30,000 1 300 1 3,000 3,000 300 30 30 30 1 1 1 30 30 

Adult stage Neritic Zone 3,000 1 30 1 300 300 30 3 3 30 1 1 1 3 3 

9417 1 94 872 942 942 94 10 9 31 1 1 1 9 9

Table A2-1. Results of threats analyses for threat category FISHERIES BYCATCH.

TOTAL ESTIMATED ADJUSTED 

ANNUAL MORTALITY

(# OF ADULT FEMALES)
V-12

Table A1-5. Reproductive values and relative reproductive values. 

Lifestage Ecosystem Reproductive 

Values

Relative 

Reproductive 

Values

Nesting female Terrestrial Zone 253.1 1.000

Egg Terrestrial Zone 1 0.004

Hatchling stage Terrestrial Zone 1 0.004

Hatchling swim frenzy, 

transitional stage Neritic Zone 1 0.004

Juvenile stage Oceanic Zone 7.3 0.029

Adult stage Oceanic Zone 199.8 0.789

Juvenile stage Neritic Zone 59.6 0.235

Adult stage Neritic Zone 199.8 0.789
V-13

Table A1-6. Calculations for reproductive values. 

Lifestage Age

Stable Age 

Distribution

Stable Age 

Distribution, 

eliminating 

eggs/hatchlings 

stage

Reproductive 

Values (RV)

Weighted 

mean of 

RV for 

each stage

Eggs/Hatchlings 1 0.439 1 1

2 0.112 0.199207793 3.915 7.3287694

3 0.083 0.147627204 5.294

4 0.061 0.108497102 7.16

5 0.045 0.080038846 9.683

6 0.034 0.060473794 13.095

7 0.025 0.044466025 17.71

8 0.018 0.032015538 23.95 59.565532

9 0.017 0.030236897 26.223

10 0.015 0.026679615 28.712

11 0.014 0.024900974 31.438

12 0.013 0.023122333 34.422

13 0.012 0.021343692 37.689

14 0.011 0.019565051 41.267

15 0.009709 0.017268826 45.184

16 0.008868 0.015772988 49.473

17 0.008099 0.014405214 54.169

18 0.007397 0.013156608 59.311

19 0.006756 0.012016499 64.941

20 0.00617 0.010974215 71.105

21 0.005635 0.010022642 77.854

22 0.005146 0.009152887 85.244

23 0.0047 0.008359613 93.336

24 0.004293 0.007635706 102.195

25 0.003921 0.006974051 111.896

26 0.003581 0.006369313 122.517

27 0.00327 0.005816156 134.146

28 0.002987 0.005312801 146.88

29 0.002728 0.004852133 160.822

30 0.002491 0.004430595 176.087

31 0.002275 0.004046408 192.801

32 0.002078 0.003696016 211.102

33 0.001898 0.003375861 231.14

Breeding Adults 34 0.003851 0.006849547 253.081 253.081

Non-Breeding Adults 35 0.006374 0.011337058 167.563 167.563

Adults 199.771

Oceanic Juveniles

Neritic Juveniles
V-14

Table A1-7. Annual mortality for each lifestage/ecosystem for each threat category adjusted by relative reprodu

(does not include sub-lethal effects, see individual threats tables in Appendix 2). Numeric values are not presenttable, only categories of annual estimates of mortality based on the color-coded log scale (Table A1-3). 

LIFE STAGE ECOSYSTEM FISHERIES BYCATCH RESOURCE USE (NON- FISHERIES) CONSTRUCTION AND DEVELOPMENT ECOSYSTEM ALTERATIONS POLLUTION SPE

INTERA

Nesting female Terrestrial Zone

Egg Terrestrial Zone

Hatchling stage Terrestrial Zone

Swim frenzy, 

transitional stage Neritic Zone

Juvenile stage Oceanic Zone

Adult stage Oceanic Zone

Juvenile stage Neritic Zone

Adult stage Neritic Zone

CATEGORIES OF THREATS

Table A2-8. Annual mortality for each lifestage/ecosystem for each threat category adjusted by relative reproduc

(does not include sub-lethal effects, see individual worksheets).
V-15

Table A1-8. Annual mortality for each threat within a threat category summed for all lifestages/ecosystems and reproductive values for each lifestage/ecosystem (does not include sub-lethal effects, see individual threats tables 

Numeric values are not presented in this summary table, only categories of annual estimates of mortality based oscale (Table A1-3). 

THREAT 

CATEGORY

Other Factors Climate change Natural catastrophes Cold water Other (egg stage only)

Species 

Interactions

Predation by native 

species

Disease and 

parasites

Harmful algal 

blooms

Predation by exotic 

species

Exotic dune and 

beach vegetation

Ecosystem 

Alterations

Trophic changes 

from fishery 

harvest

Trophic changes 

from benthic 

habitat alteration

Beach erosion 

(washouts) and 

accretion

Aquaculture Eutrophication

Pollution Marine debris ingestion

Marine debris 

entanglement in 

derelict fishing 

gear

Marine debris 

entanglement in 

non-fishing gear

Beach debris Oil pollution Light pollution Noise pollution Thermal pollution Chemical pollution

Construction 

and 

Development

Beach sand 

placement Beach armoring Other shoreline stabilizations Sand fences Dredging Stormwater outfalls Coastal construction Channel blasting Bridge blasting

Resource Use 

(non-fisheries) Legal harvest Illegal harvest Oil and gas activities Vessel strikes Beach cleaning Human presence Recreational beach equipment Beach vehicular driving Power plant entrainment Conservation/ research activities Military activities Salvage operations

Fisheries 

Bycatch Trawl (bottom) Trawl (top/ midwater) Dredge fisheries Longline (pelagic) Longline (demersal) Gillnet (demersal, lg. mesh) Gillnet (demersal, sm. mesh) Gillnet (drift) Pound nets and weirs Pot/trap fisheries Haul seines Channel net P

Table A2-9. Annual mortality for each threat within a threat category summed for all lifestages/ecosystems and adjusted for RRV for each lifestage/ecosystem (does not inindividual worksheets).

SPECIFIC THREAT WITHIN A THREAT CATEGORY
V-16
V-17

APPENDIX 2: THREATS TABLES

The following seven tables are the result of the loggerhead threats analysis described in Appendix 1. Please cons

posted on the NMFS Office of Protected Resources Recovery Plan website [http://www.nmfs.noaa.gov/pr/recoveto access detailed information used to derive the estimated annual mortality. 

LIFE STAGE ECOSYSTEM TRAWL (BOTTOM) TRAWL (TOP/ MID- WATER) DREDGE FISHERIES LONGLINE (PELAGIC) LONGLINE (DEMER-SAL) GILLNET (DEMER-SAL, LG. MESH) GILLNET (DEMER-SAL, SM. MESH) GILLNET (DRIFT) POUND NETS AND WEIRS POT/TRAP FISHERIES HAUL SEINES CHANNEL NET PURSE SEINE OTHER HOOK & LINE (RECREA- TIONAL) OTHER HOO

& LINE (COM

ERCIAL) 

Nesting female Terrestrial Zone 

Egg Terrestrial Zone 

Hatchling stage Terrestrial Zone 

Swim frenzy, 

transitional stage Neritic Zone 1 

Juvenile stage Oceanic Zone 30,000 1 1 

Adult stage Oceanic Zone 1 1 

Juvenile stage Neritic Zone 30,000 1 300 1 3,000 3,000 300 30 30 30 1 1 1 30 30 

Adult stage Neritic Zone 3,000 1 30 1 300 300 30 3 3 30 1 1 1 3 3 

9417 1 94 872 942 942 94 10 9 31 1 1 1 9 9

Table A2-1. Results of threats analyses for threat category FISHERIES BYCATCH.

TOTAL ESTIMATED ADJUSTED 

ANNUAL MORTALITY

(# OF ADULT FEMALES)
V-18

Life Stage Ecosystem LEGAL HARVEST ILLEGAL HARVEST OIL AND GAS ACTIVITIES VESSEL STRIKES BEACH CLEANING HUMAN PRESENCE RECREA- TIONAL BEACH EQUIPMENT BEACH VEHICULAR DRIVING POWER GENER- ATING ACTIVITIES CONSER- VATION/ RESEARCH ACTIVITIES MILITARY ACTIVITIES SALVAGE OPERATIONS 

Nesting female Terrestrial Zone 3 1 

Egg Terrestrial Zone 3,000 1 1 1 300 1 

Hatchling stage Terrestrial Zone 1 1 1 1 1 1 

Swim frenzy, 

transitional stage Neritic Zone 1 

Juvenile stage Oceanic Zone 30 30 1 1 

Adult stage Oceanic Zone 1 1 

Juvenile stage Neritic Zone 3,000 300 30 300 3 3 1 

Adult stage Neritic Zone 300 30 3 300 3 3 1 

943 107 10 308 0 0 0 3 3 4 2 0

Table A2-2. Results of threats analyses for threat category RESOURCE USE (NON-FISHERIES).

TOTAL ESTIMATED ADJUSTED 

ANNUAL MORTALITY

(# OF ADULT FEMALES)
V-19

Life Stage Ecosystem BEACH SAND PLACEMENT BEACH ARMORING OTHER SHORELINE STABILIZ- ATIONS SAND FENCES DREDGING STORM- WATER OUTFALLS COASTAL CONSTRUCTION CHANNEL BLASTING BRIDGE BLASTING SUM R

Nesting female Terrestrial Zone 1 3 1 1 6 1

Egg Terrestrial Zone 3,000 30,000 1 1 3,000 36,002 0

Hatchling stage Terrestrial Zone 3,000 1 1 1 1 3,004 0

Swim frenzy, 

transitional stage Neritic Zone 1 1 0

Juvenile stage Oceanic Zone 0 0

Adult stage Oceanic Zone 0 0

Juvenile stage Neritic Zone 30 30 0

Adult stage Neritic Zone 3 3 0

25 123 1 0 9 0 13 0 0

Table A2-3. Results of threats analyses for threat category CONSTRUCTION AND DEVELOPMENT.

TOTAL ESTIMATED ADJUSTED 

ANNUAL MORTALITY

(# OF ADULT FEMALES)
V-20

Life Stage Ecosystem

TROPHIC 

CHANGES FROM 

FISHERY 

HARVEST

TROPHIC 

CHANGES FROM 

BENTHIC 

HABITAT 

ALTERATION

BEACH EROSION 

(WASHOUTS) 

AND ACCRETION

AQUA-CULTURE EUTROPHI- CATION SUM RRV

TO

Nesting female Terrestrial Zone 0 1.000 

Egg Terrestrial Zone 300,000 300,000 0.004 

Hatchling stage Terrestrial Zone 0 0.004 

Swim frenzy, 

transitional stage Neritic Zone 0 0.004 

Juvenile stage Oceanic Zone 0 0.029 

Adult stage Oceanic Zone 0 0.789 

Juvenile stage Neritic Zone 0 0.235 

Adult stage Neritic Zone 0 0.789 

0 0 1,200 0 0

TOTAL ESTIMATED ADJUSTED 

ANNUAL MORTALITY

(# OF ADULT FEMALES)

Table A2-4. Results of threats analyses for threat category ECOSYSTEM ALTERATIONS.
V-21

Life Stage Ecosystem

MARINE 

DEBRIS 

INGESTION

MARINE 

DEBRIS 

ENTANGLEMENT IN 

DERELICT 

FISHING GEAR

MARINE 

DEBRIS 

ENTANGLEMENT IN NONFISHING GEAR BEACH DEBRIS OIL POLLUTION LIGHT POLLUTION NOISE POLLUTION THERMAL POLLUTION CHEMICAL POLLUTION SUM RR

Nesting female Terrestrial Zone 3 3 1.00

Egg Terrestrial Zone 1 1 2 0.00

Hatchling stage Terrestrial Zone 1 1 300,000 300,002 0.00

Swim frenzy, 

transitional stage Neritic Zone 30,000 1 1 30,000 1 1 60,004 0.00

Juvenile stage Oceanic Zone 1 1 1 1 1 5 0.02

Adult stage Oceanic Zone 1 1 1 1 1 5 0.78

Juvenile stage Neritic Zone 1 300 30 30 1 362 0.23

Adult stage Neritic Zone 1 30 30 3 1 65 0.78

122 95 32 0 130 1203 0 0 2

TOTAL ESTIMATED ADJUSTED 

ANNUAL MORTALITY

(# OF ADULT FEMALES)

Table A2-5. Results of threats analyses for threat category POLLUTION.
V-22

Life Stage Ecosystem PREDATION BY NATIVE SPECIES DISEASE AND PARASITES HARMFUL ALGAL BLOOMS PREDATION BY EXOTIC SPECIES EXOTIC DUNE AND BEACH VEGETATION SUM RRV TO

Nesting female Terrestrial Zone 0 1.000 

Egg Terrestrial Zone 300,000 see comment 30,000 1 330,001 0.004 

Hatchling stage Terrestrial Zone 3,000 1 1 3,002 0.004 

Swim frenzy, 

transitional stage Neritic Zone 300,000 300,000 0.004 

Juvenile stage Oceanic Zone 1 1 2 0.029 

Adult stage Oceanic Zone 1 1 2 0.789 

Juvenile stage Neritic Zone 1 1 30 32 0.235 

Adult stage Neritic Zone 1 1 30 32 0.789 

2414 0 31 120 0

TOTAL ESTIMATED ADJUSTED 

ANNUAL MORTALITY

(# OF ADULT FEMALES)

Table A2-6. Results of threats analyses for threat category SPECIES INTERACTIONS.
V-23

Life Stage Ecosystem CLIMATE CHANGE NATURAL CATAS- TROPHES COLD WATER OTHER (EGG STAGE ONLY) SUM RRV

TOTA

(# 

Nesting female Terrestrial Zone 0 1.000 

Egg Terrestrial Zone 1 see comment 300,000 300,001 0.004 

Hatchling stage Terrestrial Zone 1 1 2 0.004 

Swim frenzy, 

transitional stage Neritic Zone 1 1 2 0.004 

Juvenile stage Oceanic Zone 1 1 0.029 

Adult stage Oceanic Zone 0 0.789 

Juvenile stage Neritic Zone 30 30 0.235 

Adult stage Neritic Zone 0 0.789 

0 0 7 1200

TOTAL ESTIMATED ADJUSTED 

ANNUAL MORTALITY

(# OF ADULT FEMALES)

Table A2-7. Results of threats analyses for threat category OTHER FACTORS.
V-24
V-25

APPENDIX 3: LEGAL HARVEST TABLE

Legal Harvest of Loggerheads in the Greater Caribbean Islands, Mexico and Central Americ

South America, and the Eastern Atlantic Islands.

Greater Caribbean Islands 

Country/ 

Territory 

Legal 

Turtle 

Harvest 

Legal 

Egg 

Harvest 

Season Size Limit Source Legislation 

Anguilla (United Kingdom) 

No1 No1 Fisheries Protection Act, Revised Statutes of Anguilla, Chapter F-40 B

20

Antigua & Barbuda Yes No Sep 1-Apr 30 >73 kg (160 lb.) 1990 Fishery Regulations, promulgated under the authority of the Fisheries Act (1983), Section 21 B

20

Aruba (Netherlands) No No 

Nests/Eggs are protected by the Marine Environment Ordinance (Marien Milieuverordening Aruba A.B. 1980 Nr. 18); Turtles are protected under this law by Decree No. 

51 of 1987 

B20

The Bahamas Yes2 No Aug 1-Mar 31 

≥76 cm (30 in) back length 

Fisheries Resources Regulations, 3 March 1986, Part IV, Sections 29-33 F

Barbados No No 

Fisheries (Management) Regulations of 1998, promulgated under the authority of the Fisheries Act (1993) 

H

1 Harvest is prohibited until 2021. 2 Harvest quota is 1,200 kg per year. 
V-26

Country/ 

Territory 

Legal 

Turtle 

Harvest 

Legal 

Egg 

Harvest 

Season Size Limit Source Legislation 

Bermuda No No Protected Species Act 2003 Bonaire (Netherlands Antilles) 

No No 

Marine Environment Ordinance (Verordening Marien Milieu A.B. 1991 Nr. 8), Article 14 

B20

British Virgin Islands (United Kingdom) 

Yes No Dec 1-Mar 31 ≥9 kg (20 lb) The Turtles Ordinance 1959 as amended in 1986, Fisheries Act 1997 F

al

Cayman Islands (United Kingdom) 

Yes No Nov 1-Mar 31 ≤60 cm 

Marine Conservation Law 1978, The Marine Conservation (Turtle Protection) (Amendment) 2007 

Fal

Cuba No No Ministry of Fishing Industries (MIP) Resolution 9 (2008) Curacao (Netherlands Antilles) 

No No 

Eilandsbesluit bescherming zeeschildpadden (A.B. 1996 Nr.8), promulgated under the authority of the Reef Management Ordinance (A.B. 1976 nr. 48) 

B20

Dominica Yes No Oct 1-May 31 ≥20 lb Forestry and Wildlife Act, Ch 60:02, Act 12 of 1990, Section 21 B

20

Dominican Republic No No Decree No. 34-96, 1996 FGrenada Yes No Sep 1-Apr 30 ≥25 lb 

Fisheries Amendment Regulations 1996 SRO24 Section 16(5) and Fisheries Amendment Regulation 2001 SRO2 Section 17 

B20

Guadeloupe (France) No No 

Arrêté ministériel du 14 Octobre 2005 fixant la liste des tortues marines protégées sur le territoire national et 

B20W
V-27

Country/ 

Territory 

Legal 

Turtle 

Harvest 

Legal 

Egg 

Harvest 

Season Size Limit Source Legislation 

les modalités de leur protection co

Haiti Yes No Oct 1-Apr 30 Fisheries Law 27, Oct. 1978, Article 97 FJamaica No No Wildlife Protection Act (145), amended 1991 FMartinique (France) No No 

Arrêté ministériel du 14 Octobre 2005 fixant la liste des tortues marines protégées sur le territoire national et les modalités de leur protection 

B20Wco

Montserrat (United Kingdom) 

Yes Yes Oct 1-Apr 1 

≥20 lb (9.07 kg) 

Laws of Montserrat 1962, Chapter 112 G

Puerto Rico (United States) No No Endangered Species Act (1973) FSaba (Netherlands Antilles) 

No No 

2001 Nature Conservation Ordinance (Landsverordening grondslagen natuurbeheer en bescherming) 

B20

St. Eustatius (Netherlands Antilles) 

No No 

2001 Nature Conservation Ordinance (Landsverordening grondslagen natuurbeheer en bescherming) 

B20

St. Kitts & Nevis Yes No Mar 1-Sep 30 >72.6 kg (160 lb) 1995 Fishery Regulations (Art.19) promulgated under the authority of the Fisheries Act (No.4) of 1984 B

20

St. Lucia Yes No Oct 2-Feb 27 >35 kg (75 lb) Fisheries Regulations (1994), promulgated under the authority of the Fisheries Act (1986) B

20

St. Maarten (Netherlands No No 2001 Nature Conservation Ordinance (Landsverordening grondslagen B

20
V-28

Country/ 

Territory 

Legal 

Turtle 

Harvest 

Legal 

Egg 

Harvest 

Season Size Limit Source Legislation 

Antilles) natuurbeheer en bescherming) St. Vincent & Grenadines Yes No Aug 1-Feb 28 >72 kg (160 lb) 1987 Fisheries Regulations (Part VI), promulgated under the authority of the Fisheries Act (1986) B

20

Tobago/ Trinidad Yes No Oct 1-Feb 28 

The Conservation of Wildlife Act (Chapter 67:01) and Fisheries Act (Chapter 67:51) 

B20

Turks and Caicos (United Kingdom) 

Yes No Year-round ≥9 kg (20 lb) Fisheries Protection Ordinance 1995 F

U.S. Virgin Islands (United States) 

No No Endangered Species Act (1973) F

Mexico and Central America 

Country 

Legal 

Turtle 

Harvest 

Legal 

Egg 

Harvest

Season Size Limit Source Legislation 

Belize No No 

Section 13 of the Fisheries Act, Chapter 210 of the Substantive Laws of Belize Revised Edition 2003 Statutory Instrument No. 66 0f 2002 

B2

Costa Rica No No 

Decreto No 8325 Ley de Protección, Conservación y Recuperación de las Poblaciones de Tortugas Marinas (2002) 

B2
V-29

Country 

Legal 

Turtle 

Harvest 

Legal 

Egg 

Harvest

Season Size Limit Source Legislation 

Guatemala No No Ley General de Pesca y Acuicultura Decreto No 80 (2002) B

2

Honduras No No Ley General del Ambiente Decreto No 104-93 ( 8 June 1993) B

2

Mexico No No 

Acuerdo por el que se Establece Veda para las Especies y Subspecies de Tortuga Marina en aguas de Jurisdiccion Federal del Golfo de Mexico y Mar Caribe, asi como las del Oceano Pacifico, Incluyendo el Golfo de California (31 May 1990) 

F

Nicaragua No No 2005 Ley de Pesca y Acuicultura No489 B

2

Panama No No 

Wildlife Law (Ley de Vida Silvestre No. 24), 1995 and Environment Law (Ley General de Ambiente No. 41), 1998 

B2
V-30

South America 

Country 

Legal 

Turtle 

Harvest 

Legal 

Egg 

Harvest

Season Size Limit Source Legislation 

Brazil No No Order n. 5 (31 January 1986) Colombia No No Resolucion No. 002879 de 21 Noviembre 1995 French Guiana (France) No No 

Arrêté ministériel du 14 Octobre 2005 fixant la liste des tortues marines protégées sur le territoire national et les modalités de leur protection 

Guyana Yes No 

Eggs are protected under Fisheires Regulations 1973 Section 4.21, and turtles are harvested by permit under Section 33, Chapter 71.098 

Suriname No No 

Game law of 1954; Government Publication of Suriname No. 25. Resolution 104, October 1970 

Venezuela No No 

1979 Resolution to the 1970 Ley de Protección a la Fauna Silvestre (Gaceta Oficial No 29.289) 
V-31

Eastern Atlantic Islands 

Country 

Legal 

Turtle 

Harvest 

Legal 

Egg 

Harvest

Season Size Limit Source Legislation 

Azores No No 

The conservation of loggerhead turtles is ruled by ratification of the Convention on Migratory Species (11/1/1983) 

Canary Islands No No 

Ley 4/1989 (27/03/1989) sobre Proteccion de los Espacious Naturales y la Flora y Fauna Silvestres; Loi 12/1994 du 19 Decembre 1994 sur les Espaces naturaels des Canaries; Decreto 161/97 de Delegaciones en Materia de Medio Ambiente a lod Cabildos Insulares 

Cape Verde No Decretee Law 7/2002 from December 30 Official Bulletin 37 Madeira No No Decreto Legislativo Regional n.o 18/85/M of 07/09/1985 

Acknowledgements: The Loggerhead Recovery Team acknowledges the significant contributions of Karen Ecke

Matthew Godfrey in completing this table. Information was also provided by Sebastian Troeng, Isias Majil, Ana

Ruiz, Marco Aurélio Robalo dos Santos, Peri Mason, Helen R. Martins, Kimberly Stewart, Robert van Dam, DavRandall Arauz, Carl Lloyd, and Lucy Hawkes. 
V-32
V-33

APPENDIX 4: CONSERVATION LANDS TABLE

U.S. Loggerhead Nesting Beaches in Conservation Lands (approximate length and ownership), 

2007. Conservation lands are defined as public ownership (Federal, state, or local government) 

and privately owned lands (e.g., non-profit conservation foundations). Most of these lands are 

generally managed in a way that benefits sea turtle conservation. Public lands that have lighted 

development, armoring, or other profound threats to sea turtle nesting have not been included. In 

compiling the list of conservation lands, human visitation was not considered a profound threat 

to sea turtle nesting. Therefore, public lands designated for human recreation have been 

included. F=Federal, S=State, C=County, M=Municipal, N=NGO Conservation Lands, 

P=Private Conservation Lands, T=Special Taxing District of the State. 

Conservation Land Name 

Length 

(km) Ownership

 

VIRGINIA (north to south) 

Chincoteague NWR (Assateague Island) 20.60 F 

Wallops Island 10.60 F 

Chincoteague NWR (Assawoman Island) 8.10 F 

Chincoteague NWR (Metompkin Island) 1.20 F 

Metompkin Island 10.90 N 

Cedar Sandbar 1.60 S 

Cedar Island (Chincoteague NWR/The Nature 

Conservancy/private) 6.00 

F, N, 

Private 

Parramore Island Natural Area Preserve 15.00 N 

Hog Island 16.10 N, Private 

Cobb Island 11.10 N 

Little Cobb Island 1.10 N 

Wreck Island 6.90 S 

Ship Shoal Island 4.50 N 

Myrtle Island 6.00 N 

Smith Island 13.30 N 

Fishermans Island NWR 9.70 F 

Fort Story Military Reservation 5.80 F 

Virginia Beach Resort Strip 9.70 M 

Croatan Beach 1.60 M 

Dam Neck Naval Base 5.20 F 

Sandbridge Beach (includes Little Island District Park) 8.10 M 

Back Bay NWR 7.60 F 

False Cape State Park 6.80 S 

VIRGINIA TOTAL 187.50 
V-34

NORTH CAROLINA (north to south) 

Currituck NWR (Swan Island Unit) 3.60 F 

Currituck NWR (Monkey Island Unit) 1.60 F 

The Nature Conservancy (unnamed parcel) 2.00 N 

Currituck Banks National Estuarine Research Reserve 2.00 S 

Pea Island NWR 19.50 F 

Cape Hatteras National Seashore 80.00 F 

Cape Lookout National Seashore 93.30 F 

Fort Macon State Park 3.20 S 

Hammocks Beach State Park 6.00 S 

Onslow Beach 18.30 F 

Lea and Huttaf Islands (Audubon) 3.22 N 

Masonboro Island 12.00 S 

Fort Fisher State Recreation Area 4.83 S 

Bird Island 1.60 S 

NORTH CAROLINA TOTAL 251.15 

 

SOUTH CAROLINA (north to south) 

Waites Island (Coastal Carolina University segment) 2.00 S 

Myrtle Beach State Park 2.00 S 

Huntington Beach State Park 4.80 S 

Hobcaw Barony Research Reserve 3.30 S 

North Island (Tom Yawkey Wildlife Center Heritage Preserve) 15.00 S 

Sand/South Island (Tom Yawkey Wildlife Center Heritage 

Preserve) 8.00 S 

Cedar Island (SCDNR Santee Coastal Reserve) 4.30 S 

Murphy Island (SCDNR Santee Coastal Reserve) 9.00 S 

Cape Romain NWR (Cape/Lighthouse Islands) 13.50 F 

Cape Romain NWR (Raccoon Key) 9.00 F 

Cape Romain NWR (Bull Island) 10.00 F 

Capers Island (SCDNR Heritage Preserve) 5.20 S 

Isle of Palms County Park 0.18 C 

Folly Beach County Park (north end, no facilities) 0.80 C 

Folly Beach County Park (south end, facilities) 0.76 C 

Beachwalker County Park at Kiawah Island 1.00 C 

Botany Bay Island 2.80 P 

Botany Bay Plantation (Edisto Island) 3.50 S 

Edisto Beach State Park 2.30 S 

Pine Island (SCDNR) 0.50 S 

Otter Island (SCDNR Heritage Preserve) 7.60 S 

Hunting Island State Park 6.40 S 
V-35

Pritchards Island (University of South Carolina) 4.00 S 

St. Phillips Island 1.00 P 

Turtle Island (SCDNR Heritage Preserve) 1.00 S 

SOUTH CAROLINA TOTAL 114.64 

 

GEORGIA (north to south) 

Little Tybee Island 8.70 S 

Wassaw NWR 10.80 F 

Pine Island 1.80 F 

Ossabaw Island 17.70 S 

Blackbeard Island NWR 14.40 F 

Sapelo Island 9.90 S 

Wolf Island NWR 4.00 F 

Old Coast Guard Station/Bruce Tract 1.00 C 

Massengale Park 0.50 C 

Jekyll Island 14.70 S 

Little Cumberland Island 4.90 P 

Cumberland Island National Seashore 28.40 F 

GEORGIA TOTAL 116.80 

 

FLORIDA ATLANTIC COAST (north to south) 

Fort Clinch State Park 3.70 S 

Main Beach Park (aka Dr. G. Ralph Wolff Beach Park) 0.40 M 

North Beach Park 0.40 M 

Seaside Park 0.40 M 

Peters Point Park 0.27 C 

Burney Park 0.18 C 

Little Talbot Island State Park 9.70 S 

Huguenot Memorial Park 2.82 M 

Mayport Naval Station 1.80 F 

Kathryn Abbey Hanna Park 2.40 M 

Guana River State Park 6.80 S 

South Ponte Vedra Park 0.03 C 

Surfside Park 0.05 C 

Anastasia State Park 7.20 S 

Franklin B. Butler Park 0.33 C 

Crescent Beach Park 0.07 C 

Fort Matanzas National Monument 1.61 F 

River to Sea Preserve 0.16 C 

Washington Oaks Gardens State Park 1.10 S 

Malacompra Park 0.80 C 
V-36

Old Salt Road Park (16th Road Beach Access) 0.10 C 

Jungle Hut Road Park 0.10 C 

Varn Park 0.40 C 

Gamble Rogers Memorial State Recreation Area 1.80 S 

North Peninsula State Recreation Area 3.99 S 

Bicentenial Park 0.19 C 

Tom Renick Park 0.06 C 

Birth Place of Speed Park 0.06 M 

Dahlia Park 0.12 M 

Ponce Preserve 0.29 M 

Winterhaven Park 0.03 C 

Lighthouse Point Park 0.52 C 

Smyrna Dunes Park 0.94 C 

North Beach Community Park 0.14 M 

Canaveral National Seashore 38.20 F 

Merritt Island NWR 9.80 F 

Cape Canaveral Air Force Station 21.00 F 

Jetty Park 0.31 T 

Cherie Down Park 0.13 C 

Alan Shepard Park 0.38 M 

Sidney Fischer Park 0.09 M 

Lori Wilson Park 0.35 C 

Robert P. Murkshe Memorial Park 0.13 C 

Cresent Beach 0.08 M 

Patrick Air Force Base 7.00 F 

Seagull Park 0.06 C 

S.P.R.A. Park 0.06 C 

Hightower Beach Park 0.86 S/C 

Pelican Beach Park 0.46 M 

Richard G. Edgeton Bicentennial Park 0.05 M 

Millenium Park 0.08 M 

Irene H. Canova Park 0.13 C 

Canova Beach Park 0.34 C 

Howard E. Futch Memorial Park (Paradise Beach Park) 0.41 C 

Sunrise Park 0.08 M 

James H. Nance Park 0.21 M 

Indialantic Beach 0.46 M 

Wave Crest Park 0.06 M 

Ocean Park 0.11 M 

Loggerhead Park Preserve 0.07 M 

Spessard Holland North Beach Park 0.41 C 
V-37

Spessard Holland South Beach Park 0.44 C 

Archie Carr NWR (Brevard County) 3.88 F/S/C 

Sea Oats Park 0.09 S 

Coconut Point Park 0.46 S 

Juan Ponce de Leon Landing 0.70 S 

Twin Shores Park 0.27 S 

Judith Resnick Memorial Park 0.47 S 

Brevard County Fire Rescue Property 0.04 C 

Bonsteel Park 0.07 S 

Sebastian Inlet State Park 4.80 S 

Archie Carr NWR (Indian River County) 0.72 F/S 

Ambersand Beach Park 0.03 C 

Treasure Shores Park 0.50 C 

North Treasure Shores Parcel 0.59 S 

South Treasure Shores Parcel 0.15 S 

Spallone Tract 0.03 S 

Golden Sands Park 0.23 C 

Wabasso Beach Park 0.11 C 

Jungle Trail Conservation Area - North 0.16 C 

Jungle Trail Conservation Area - South 0.30 C 

Tracking Station Beach Park 0.33 C 

Jaycee Park 0.16 C 

Humiston Park 0.15 C 

South Beach Park 0.17 C 

Round Island Park 0.10 C 

Avalon State Park 1.83 S 

Pepper Park 0.63 S/C 

Fort Pierce Inlet State Park 0.57 S 

South Jetty Park 0.05 C 

South Beach Boardwalk Park 0.38 S 

Kimberly Bergalis Park 0.55 S 

Surfside Park 0.18 M 

Coconut Drive Park 0.15 M 

Exchange Park 0.07 C 

Green Turtle Beach Park 0.38 S 

Frederick Douglass Park 0.31 C 

Blind Creek Park 0.10 C 

Turtle Beach Nature Trail 0.55 P 

St. Lucie Power Plant 2.50 P 

Walton Rocks Park 1.03 C/P 

Dollman Park 0.57 C 
V-38

Waveland Park 0.10 C/P 

Glasscock Beach Park 0.03 S 

Sea Turtle Beach Park 0.40 S/C 

Jensen Beach Park 0.44 C 

Muscara 0.26 S 

Bob Graham Beach Park 0.61 S/C 

Bob Graham Beach Addition 0.10 C 

Curtis Beach Park 0.09 S 

Pasley Beach Park 0.09 C 

Dubner 0.03 S 

Beachwalk Park 0.13 C 

Alex’s Beach Park 0.12 S 

Bryn Mawr Park 0.03 C 

Stokes Park 0.003 C 

Virginia Forrest Beach Park 0.03 S 

Tiger Shores Beach Park 0.04 C 

Stuart Beach Park 0.41 C 

Santa Lucea 0.25 S 

Fletcher Beach Park 0.04 S 

House of Refuge Park 0.63 C 

Chastain Beach Park 0.03 C 

Bathtub Reef Beach Park 0.31 S/C 

St. Lucie Inlet Preserve State Park 4.30 S 

Hobe Sound NWR 5.30 F 

Hobe Sound Beach Park 0.08 C 

Blowing Rocks Preserve 1.20 N 

Coral Cove Park (incorporated) 0.29 C 

Coral Cove (unincorporated - future park) 0.61 C 

Jupiter Beach Park 0.57 C 

Carlin Park 1.02 C 

Diamondhead/Radnor (future park) 1.10 C 

Ocean Cay Park 0.21 C 

Juno Beach Park 0.09 C 

Juno Dunes Natural Area 0.82 C 

Loggerhead Park 0.34 C 

John D. MacArthur Beach State Park 2.90 S 

Ocean Reef Park 0.22 C 

Riviera Municipal Beach 0.31 M 

Palm Beach Municipal Beach 0.79 M 

Phipps Ocean Park 0.37 M 

R.G. Kreusler Park 0.16 C 
V-39

Lake Worth Municipal Beach 0.40 M 

Lantana Municipal Beach 0.21 M 

Ocean Hammock Park 0.33 C 

Boynton Beach Oceanfront Park 0.30 M 

Gulfstream Park 0.18 C 

Delray Beach Municipal Beach 1.67 M 

Atlantic Dunes 0.16 M 

Milani (future park) 0.12 C 

Spanish River Park 1.00 M 

Red Reef Park 0.73 M 

Red Reef Golf Course 0.36 M 

South Beach Park 0.84 M 

South Inlet Park 0.29 C 

Southbeach Park 0.76 C 

Hollywood North Beach Park 1.60 C 

John U. Lloyd Beach State Park 3.90 S 

North Shore Ocean Front Park 0.94 C 

North Shore Park 0.24 C 

64th Street Park 0.12 C 

Indian Beach Park 0.17 C 

Collins Park 0.16 C 

Lummus Park 1.34 C 

Ocean Front Park 0.16 C 

Pier Park / South Pointe Park 0.43 M 

Haulover Park 2.40 C 

Crandon Park 3.98 C 

Bill Baggs Cape Florida State Park 1.90 S 

Biscayne National Park 3.10 F 

Long Key State Park 4.00 S 

Little Crawl Key State Park 0.30 S 

Bahia Honda State Park 4.70 S 

Fort Zachary Taylor Historic State Park 0.20 S 

Florida Keys NWRs (Boca Grand and Woman Keys) 2.59 F 

Dry Tortugas National Park 3.70 F 

FLORIDA ATLANTIC COAST TOTAL 223.21 

 

FLORIDA GULF COAST (west to east, north to south) 

Perdido Key State Park 2.30 S 

Fort Pickens Gate Park 0.27 C 

Gulf Islands National Seashore (Florida District) 35.60 F 

Casino Beach 0.30 C 
V-40

Pensacola Beach Park East 0.09 C 

Beach Accesses (2 adjacent unnamed parcels) 1.46 C 

Navarre Beach State Park 1.93 S 

Eglin Air Force Base 27.40 F 

Newman C. Brackin Wayside Park and Boardwalk 0.20 C 

John Beasley Park 0.20 C 

City of Destin (unnamed parcel) 0.03 M 

Henderson Beach State Park 2.10 S 

James Lee Park 0.28 C 

Miramar Regional Beach Access 0.33 C 

Topsail Hill Preserve State Park 5.30 S 

Stallworth Lake 0.08 C 

Dune Allen/Fort Panic Regional Beach Access 0.11 C 

Ed Walline Regional Beach Access 0.06 C 

Gulfview Heights Regional Beach Access 0.03 C 

Blue Mountain Regional Beach Access 0.03 C 

Grayton Dunes Regional Beach Access 0.10 C 

Garfield Addition 0.06 C 

Grayton Beach State Park 3.10 S 

St. Joe Property Regional Beach Access 0.04 C 

Gulf Shore Manor (Santa Clara) Regional Beach Access 0.05 C 

One Seagrove Neighborhood Beach Access 0.10 C 

Deer Lake State Park 0.11 S 

Walton Dunes Regional Beach Access 0.12 C 

Inlet Beach Regional Beach Access 0.44 C 

Camp Helen State Park 0.80 S 

M.B. Miller Park 0.71 C 

Rick Seltzer Park 0.05 C 

St. Andrews State Park 9.00 S 

Tyndall Air Force Base 28.50 F 

St. Joseph Peninsula State Park 14.50 S 

Cape Palms Park 0.03 C 

Eglin Air Force Base (Cape San Blas parcel) 4.80 F 

Salinas Park 0.38 C 

St. Vincent NWR 16.10 F 

Little St. George Island (aka Cape St. George Island) 14.50 S 

St. George Island County Park 0.16 C 

St. George Island State Park 14.50 S 

Jeff Lewis Wilderness Preserve 15.44 N 

John S. Phipps Preserve 4.25 N 

Bald Point State Park 5.50 S 
V-41

Anclote Key Preserve State Park 9.70 S 

Fred H. Howard Park 0.30 C 

Sunset Beach Park 0.10 M 

Honeymoon Island State Park 6.40 S 

Caladesi Island State Park 4.00 S 

Indian Rocks Beach Access Park 0.09 C 

Sand Key Park 0.80 C 

Tiki Gardens/Indian Shores Beach Access Park 0.01 C 

Redington Shores Beach Access Park 0.11 C 

Archibald Memorial Beach 0.18 M 

Madeira Beach Access Park 0.14 C 

Kitty Stewart Park 0.02 M 

John's Pass Beach and Park 0.06 M 

Treasure Island Beach Access Park 0.08 C 

St. Pete Beach Access Park 0.09 C 

Fort Desoto County Park (North and East Beach) 9.60 C 

Egmont Key NWR (and State Park) 5.20 F 

Anna Maria Bayfront Park 0.32 M 

Holmes Beach 0.97 M 

Manatee Beach 0.64 C 

Cortez Beach 0.81 C 

Coquina Beach 1.45 C 

Beer Can Island/Greer Island 0.37 S 

North Lido Park 0.92 M 

Lido Beach 0.95 M 

South Lido Park 1.26 M 

Siesta Key Public Beach 0.73 C 

Point of Rocks 0.12 C 

Turtle Beach 0.76 C 

Palmer Point Park 0.73 C 

Nokomis Beach 0.52 C 

North Jetty Park 0.27 C 

Venice Beach 0.27 M 

Service Club Park 0.43 M 

Brohard Beach 1.46 M 

Caspersen Beach 2.79 C 

Blind Pass Beach 0.90 C 

Manasota Beach 0.43 C 

Stump Pass Beach State Park 2.40 S 

Chadwick Park (Englewood Beach) 0.59 C 

Don Pedro Island State Park 2.40 S 
V-42

Gasparilla Island State Park 2.40 S 

Cayo Costa State Park 10.90 S 

North Captiva State Park 4.80 S 

Little Estero Island Critical Wildlife Area 2.41 S 

Lovers Key State Park 4.00 S 

Bowditch Point Regional Park 0.18 C 

Lynn Hall Memorial Park 0.18 C 

Bonita Beach Park 0.18 C 

Lely Barefoot Beach Preserve 2.30 C 

Delnor-Wiggins Pass State Park 2.40 S 

Vanderbilt Beach County Park 0.10 C 

Clam Pass Conservation and Park 3.00 C 

Lowdermilk City Park 0.20 C 

Tigertail Beach County Park 0.80 C 

Ten Thousand Islands NWR 5.00 F 

FLORIDA GULF COAST TOTAL 309.65 

 

ALABAMA (west to east) 

Dauphin Island Public Beach 1.40 C 

Dauphin Island Campground 0.80 C 

Fort Gaines State Historic Site 1.00 C 

Fort Morgan State Historic Site 2.40 S 

Bureau of Land Management (unnamed parcels) 1.00 F 

ADCNR (unnamed park in Baldwin County) 0.40 S 

Bon Secour NWR 4.60 F 

Gulf Shores Public Beach 0.40 M 

Gulf State Park 5.60 S 

ALABAMA TOTAL 17.60 

 

MISSISSIPPI 

Gulf Islands National Seashore (Mississippi District) 42.90 F 

MISSISSIPPI TOTAL 42.90 

 

LOUISIANA (west to east) 

Breton NWR (Breton Island) 6.50 F 

South Gosier 2.10 S 

North Gosier (Grand) 0.80 S 

Curlew 0.50 S 

Freemason Island 2.20 S 
V-43

North Island 1.60 S 

Breton NWR (Chandeleur Islands) 41.70 F 

LOUISIANA TOTAL 55.40 

 

TEXAS (north to south) 

Sea Rim State Park 9.00 S 

Rollover Fish Pass Wildlife Management Area 0.20 S 

Bolivar Flats 4.80 S 

Fort Travis Seashore 0.80 S 

Mad Island Wildlife Management Area 21.80 S 

Stewart Beach Park 1.70 M 

Galveston Island State Park 2.50 S 

Peach Point-Bryan Beach Wildlife Management Area 2.30 S 

San Bernard NWR 8.80 F 

Matagorda Island Wildlife Management Area/State Park/NWR 48.80 F/S 

Mustang Island State Park 8.00 S 

Padre Balli Park 2.00 C 

Padre Island National Seashore 111.70 F 

Andy Bowie Park 1.20 C 

Laguna Atascosa NWR-Padre Island Preserve 31.70 F 

Lower Rio Grande Valley NWR 6.50 F 

Boca Chica State Park 1.00 S 

TEXAS TOTAL 262.80 

 

GRAND TOTAL 1,581.66