Commission Agenda Item No. 4
Presenter: Mitch Lockwood

Action
Disease Detection and Response Rules
Containment Zone Boundaries
May 22, 2019

I.      Executive Summary: With this item, Texas Parks and Wildlife Department (TPWD) staff seek adoption of a proposed amendment to rules establishing disease management zones for the control of chronic wasting disease (CWD). The proposed amendment would expand the current Containment Zone (CZ) in Medina, Bandera, and Uvalde counties.

II.     Discussion: As a result of the confirmation of CWD in a free-ranging white-tailed deer harvested by a hunter in Medina County in 2017, the Texas Parks and Wildlife Commission (Commission) promulgated rules to establish a CWD Containment Zone in portions of Medina, Bandera, and Uvalde counties. The rules require CWD testing of all white-tailed deer harvested within the CZ, restrict movement of white-tailed deer under TPWD-issued permits, allow mandatory check stations, and impose carcass-movement restrictions.

On December 31, 2018, the staff received confirmation of CWD in another free-ranging white-tailed deer killed by a hunter in Medina County. The deer was killed in a low-fenced environment. Because of the location of this most recent positive confirmation, TPWD staff and Texas Animal Health Commission staff have determined that it is prudent to enlarge the current CZ.

The staff was authorized at the March 19, 2019 Commission Work Session meeting to publish the proposed rule in the Texas Register for public comment. The rule was published in the April 19, 2019 issue of the Texas Register (44 TexReg 1962). A summary of public comment will be presented at the meeting.

III.   Recommendation: The staff recommends the Texas Parks and Wildlife Commission adopt the following motion:

“The Texas Parks and Wildlife Commission adopts an amendment to §65.81, concerning Disease Detection and Response, with changes as necessary to the proposed text as published in the April 19, 2019 issue of the Texas Register (44 TexReg 1962)."

Attachment – 1

  1. Exhibit A – Proposed Rules

Commission Agenda Item No. 4
Exhibit A

DISEASE DETECTION AND RESPONSE RULES
PROPOSAL PREAMBLE

1. Introduction.

        The Texas Parks and Wildlife Department (the department) proposes an amendment to §65.81, concerning Disease Detection and Response. The proposed amendment would enlarge current Containment Zone 3 (CZ 3) in Medina, Bandera, and Uvalde counties in response to the recent detection of chronic wasting disease (CWD) in additional free-ranging white-tailed deer in Medina County.

        CWD is a fatal neurodegenerative disorder that affects some cervid species, including white-tailed deer, mule deer, elk, red deer, sika, and their hybrids (susceptible species). It is classified as a TSE (transmissible spongiform encephalopathy), a family of diseases that includes scrapie (found in sheep), bovine spongiform encephalopathy (BSE, found in cattle and commonly known as “Mad Cow Disease”), and variant Creutzfeldt-Jakob Disease (vCJD) in humans.

        Although CWD remains under study, it is known to be invariably fatal to certain species of cervids and is transmitted both directly (through animal-to-animal contact) and indirectly (through environmental contamination).  (There is no scientific evidence to indicate that CWD is transmissible to humans.)  Moreover, a high prevalence of the disease in wild populations correlates with deer population declines and there is evidence that hunters tend to avoid areas of high CWD prevalence. If CWD is not contained and controlled, the implications of the disease for Texas and its multi-billion dollar ranching, hunting, wildlife management, and real estate economies could be significant.

        The department has engaged in several rulemakings over the years to address the threat posed by CWD. In 2005, the department closed the Texas border to the entry of out-of-state captive white-tailed and mule deer and increased regulatory requirements regarding disease monitoring and record keeping. (The closing of the Texas border to entry of out-of-state captive white-tailed and mule deer was updated, effective in January 2010, to address other disease threats to white-tailed and mule deer (35 TexReg 252).)

        On July 10, 2012, the department confirmed that two mule deer sampled in the Texas portion of the Hueco Mountains tested positive for CWD. In response, the department adopted new rules in 2013 (37 TexReg 10231) to implement a CWD containment strategy in far West Texas. The rules established a system of concentric zones within which the movement of live deer under department permits (Deer Breeder Permits, Triple T Permits, and Deer Management Permits) is restricted, and required deer harvested in specific geographical areas to be presented at check stations to be tested for CWD. A CZ is a geographic area in which CWD has been detected or the department has determined, using the best available science and data, that CWD detection is probable, and a surveillance zone (SZ) is a geographic area within which the department has determined, using the best available science and data, that the presence of CWD could reasonably be expected. CWD zone delineations were modified (41 TexReg 7501) in 2015 in response to additional CWD discoveries in the Texas Panhandle and Medina County, creating additional SZs and CZs, and again in 2017 in response to CWD being confirmed in a free-ranging 1.5-year-old male white-tailed deer harvested by a hunter within SZ 3 in Medina County.

        On December 31, 2018, the department received CWD confirmation for an approximately 4.5-year-old free-ranging male white-tailed deer within CZ 3 in Medina County. The deer was harvested by a hunter on a low-fenced property near the perimeter of the current CZ, necessitating an extension of the CZ. In this particular geographic region of the state, because of various factors including white-tailed deer movements and barriers to deer movements (e.g., high fences), it has been determined that a CZ encompassing a radius of five miles from the approximate location of a free-range positive white-tailed deer, and two miles from the boundaries of any premise where CWD has been detected in captive herds, should be sufficient to contain the disease.

        Based on the epidemiological knowledge of CWD and in consultation with TAHC, the department has determined that it is prudent to enlarge CZ 3 in response to the latest discovery.

        Except as provided for certain special situations, it is unlawful within a CZ to conduct, authorize or cause any activity involving the movement of a susceptible species under a permit issued pursuant to Parks and Wildlife Code, Chapter 43, Subchapter C, E, L, R, or R-1. Such prohibited activity includes, but is not limited to transportation, introduction, removal, authorization of the transportation, introduction or removal of, or causing the transportation, introduction or removal of a live susceptible species into, out of, or within a CZ. The rules also prohibit the possession of susceptible species within new deer breeding facilities within a CZ, prohibit the recapture of escaped breeder deer unless authorized under a hold order or herd plan issued by TAHC , and limit the transfer of breeder deer from a TC 2 deer breeding facility located within a CZ to immediately adjoining acreage if the release site and the breeding facility share the same ownership; however, a TC 1 deer breeding facility located in a CZ may transfer breeder deer, to other locations within a CZ. Additionally, the CZ designation imposes specific carcass movement restrictions on deer and parts of deer harvested within a CZ.

2. Fiscal Note.

        Mitch Lockwood, Big Game Program Director, has determined that for each of the first five years that the rule as proposed is in effect, there will be no fiscal implications to state and local governments as a result of enforcing or administering the rule as proposed, as department personnel currently allocated to the administration and enforcement of disease management activities will administer and enforce the rule as part of their current job duties and resources.

3. Public Benefit/Cost Note.

        Mr. Lockwood also has determined that for each of the first five years that the rule as proposed is in effect:

        (A) The public benefit anticipated as a result of enforcing or administering the rules as proposed will be a reduction of the probability of CWD being spread from facilities and locations where it might exist and an increase in the probability of detecting CWD if it does exist, thus ensuring the public of continued enjoyment of the resource and also ensuring the continued beneficial economic impacts of hunting in Texas.

        There will be minimal, if any, adverse economic effect on persons required to comply with the rule as proposed.

        (B) Under the provisions of Government Code, Chapter 2006, a state agency must prepare an economic impact statement and a regulatory flexibility analysis for a rule that may have an adverse economic effect on small businesses, micro-businesses, or rural communities. As required by Government Code, §2006.002(g), the Office of the Attorney General has prepared guidelines to assist state agencies in determining a proposed rule’s potential adverse economic impact on small and microbusinesses and rural communities. Those guidelines state that an agency need only consider a proposed rule’s direct adverse economic impacts” to determine if any further analysis is required. The department considers “direct economic impact “to mean a requirement that would directly impose recordkeeping or reporting requirements; impose taxes or fees; result in lost sales or profits; adversely affect market competition; or require the purchase or modification of equipment or services.

        The proposed rule would restrict the movement of deer under deer breeding permits issued by the department. The department has determined that most, if not all, deer breeders in Texas meet the statutory definition of a small or microbusiness (Government Code, Chapter 2006). The rule as proposed alters only the boundaries of the current CZ and there are no permitted deer breeders within the area encompassed by the prospective zone expansion. Therefore, the proposed rule imposes no direct costs of compliance on small businesses or microbusinesses. There will be no direct adverse economic impacts on rural communities as a result of the proposed rule. Therefore, the department has determined that neither the economic impact statement nor the regulatory flexibility analysis described in Government Code, Chapter 2006, is required.

        (C) The department has not drafted a local employment impact statement under the Administrative Procedures Act, §2001.022, as the agency has determined that the rule as proposed will not impact local economies.

        (D) The department has determined that Government Code, §2001.0225 (Regulatory Analysis of Major Environmental Rules), does not apply to the proposed rule.

        (E) The department has determined that there will not be a taking of private real property, as defined by Government Code, Chapter 2007, as a result of the proposed rule.

        (F) The department has determined that because the rule as proposed does not impose a cost on regulated persons, it is not necessary to repeal or amend any existing rule.

        (G) In compliance with the requirements of Government Code, §2001.0221, the department has prepared the following Government Growth Impact Statement (GGIS).  The rule as proposed, if adopted, will:

                 (1) neither create nor eliminate a government program;

                 (2) not result in an increase or decrease in the number of full-time equivalent employee needs;

                 (3) not result in a need for additional General Revenue funding;

                 (4) not affect the amount of any fee;

                 (5) create a new regulation;

                 (6) expand an existing regulation (by enlarging the current CZ);

                 (7) increase the number of individuals subject to regulation (by imposing mandatory check station and carcass movement restrictions in an area where such restrictions are not currently effect, thereby affecting hunters); and

                 (8) not positively or adversely affect the state’s economy.

4. Request for Public Comment.

        Comments on the proposal may be submitted to Mitch Lockwood at (830) 792-9677, email: mitch.lockwood@tpwd.texas.gov. Comments also may be submitted via the department’s website at https://www.tpwd.texas.gov/business/feedback/public_comment/.

5. Statutory Authority.

        The amendment is proposed under the authority of Parks and Wildlife Code, Chapter 43, Subchapter C, which requires the commission to adopt rules to govern the collecting, holding, possession, propagation, release, display, or transport of protected wildlife for scientific research, educational display, zoological collection, or rehabilitation; Subchapter E, which requires the commission to adopt rules for the trapping, transporting, and transplanting of game animals and game birds, urban white-tailed deer removal, and trapping and transporting surplus white-tailed deer; Subchapter L, which authorizes the commission to make regulations governing the possession, transfer, purchase, sale, of breeder deer held under the authority of the subchapter; Subchapter R, which authorizes the commission to establish the conditions of a deer management permit, including the number, type, and length of time that white-tailed deer may be temporarily detained in an enclosure; and §61.021, which provides that no person may possess a game animal at any time or in any place except as permitted under a proclamation of the commission.

        The proposed amendment affects Parks and Wildlife Code, Chapter 43, Subchapters C, E, L, R, and Chapter 61.

6. Rule Text.

        §65.81. Containment Zones; Restrictions.  The areas described in paragraph (1) of this section are CZs.

                 (1) Containment Zones.

                         (A) – (B) (No change.)

                         (C) Containment Zone 3 is that portion of the state lying within the area designated as Containment Zone 3 as depicted in the following figure, more specifically described by the following latitude-longitude coordinate pairs: -99.29398894600, 29.63445412100; -99.29333570900, 29.63428256500; -99.29198312900, 29.63440193800; -99.28980918200, 29.63446884100; -99.28763488300, 29.63441135200; -99.28546954900, 29.63422971500; -99.28332246100, 29.63392471000; -99.28120282000, 29.63349764500; -99.27911971100, 29.63295034900; -99.27708205900, 29.63228516800; -99.27509859700, 29.63150495200; -99.27317782300, 29.63061304600; -99.27132796700, 29.62961327000; -99.26955695400, 29.62850990900; -99.26787236900, 29.62730769100; -99.26628142900, 29.62601176900; -99.26479094600, 29.62462769300; -99.26340730200, 29.62316139500; -99.26213642200, 29.62161915600; -99.26098374400, 29.62000758500; -99.25995420100, 29.61833358500; -99.25905219600, 29.61660432600; -99.25852828300, 29.61543549400; 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Figure: 31 TAC §65.81(1)(C)

containment zone

        (D) (No change.)

                 (2) (No change.)

        This agency hereby certifies that the adoption has been reviewed by legal counsel and found to be a valid exercise of the agency’s authority.

        Issued in Austin, Texas, on