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Commission Agenda Item No. 6
Presenter: Mitch Lockwood

Action
Chronic Wasting Disease Detection and Response Rules
Containment and Surveillance Zone Boundaries
Recommended Adoption of Proposed Changes
May 21, 2020

I.      Executive Summary:  With this item, the staff seeks the adoption of rules establishing disease management zones for the control of Chronic Wasting Disease (CWD). The proposed amendments would:

II.     Discussion:  On December 18, 2019, the Texas Parks and Wildlife Department (TPWD) received confirmation that a 5.5-year-old female white-tailed deer killed in Val Verde County had tested positive for CWD. Accordingly, TPWD adopted rules on an emergency basis to create a CZ and SZ in Val Verde County. The proposed rulemaking would replace the emergency rules (which by law cannot be in effect for longer than 180 days) with permanent rules. On January 28, 2020 TPWD received confirmation that a 4.5-year-old male white-tailed deer and a 3.5-year-old female white-tailed deer killed in Medina County had also tested positive for CWD. The location of the mortalities necessitates a conforming change to the boundaries of current CZ 3. Additionally, TPWD received confirmation on February 26, 2020 that a 5.5-year-old female white-tailed deer held in a deer breeding facility in Kimble County had tested positive for CWD. The proposed rules would establish a new SZ in Kimble County in response to that discovery.

III.   Recommendation:  The staff recommends that the Commission adopt the proposed motion:

“The Texas Parks and Wildlife Commission adopts amendments to §65.81 and §65.82, concerning Disease Detection and Response, with changes as necessary to the proposed text as published in the April 17, 2020 issue of the Texas Register (45 TexReg 2500).”

Attachment – 1

  1. Exhibit A – Proposed Rules

Commission Agenda Item No. 6
Exhibit A

DISEASE DETECTION AND RESPONSE RULES

PROPOSAL PREAMBLE

1. Introduction.

        The Texas Parks and Wildlife Department proposes amendments to §65.81 and §65.82, concerning Disease Detection and Response. The proposed amendments are intended to replace emergency rules affecting Subchapter B, Division 1 adopted on January 10, 2020 (45 TexReg 243), as well as to respond to additional detections of CWD in Medina and Kimble counties.

        Chronic wasting disease (CWD) is a fatal neurodegenerative disorder that affects some cervid species, including white-tailed deer, mule deer, elk, red deer, sika, and their hybrids (referred to collectively as 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.

        Much remains unknown about CWD. The peculiarities of its transmission (how it is passed from animal to animal), infection rate (the frequency of occurrence through time or other comparative standard), incubation period (the time from exposure to clinical manifestation), and potential for transmission to other species are still being investigated. What is known is that CWD is invariably fatal to certain species of cervids, and is transmitted both directly (through animal-to-animal contact) and indirectly (through environmental contamination). 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, including rules to designate a system of zones in areas where CWD is confirmed, within which the possession and movement of live deer under department permits is restricted, and harvested deer are required to be presented at check stations to be tested for CWD. In 2016, those rules were modified (41 TexReg 7501) in response to additional CWD discoveries in the Texas Panhandle and Medina County, creating additional Surveillance Zones (SZs) and an additional Containment Zone (CZ) in West Texas. The rules were amended again in 2017 in response to a subsequent positive test result in Medina County.

        On December 18, 2019, the department received confirmation that a free ranging 5.5-year-old female white-tailed deer killed in Val Verde County had tested positive for CWD. Accordingly, the department adopted rules on an emergency basis to create a CZ and SZ in Val Verde County. This proposed rulemaking would replace the emergency rules with permanent rules.

        On January 28, 2020, the department received confirmation that a 4.5-year-old male white-tailed deer and a 3.5-year-old female white-tailed deer killed in Medina County had tested positive for CWD. The location of the mortalities necessitates a conforming change to the boundaries of current CZ 3.

        On February 26, 2020, the department received confirmation that a 5.5-year-old female white-tailed deer held in a deer breeding facility in Kimble County had tested positive for CWD. The proposed amendment to §65.80, concerning Surveillance Zones; Restrictions, would create new SZ 5 in response.

        The proposed amendment to §65.81, concerning Containment Zones; Restrictions, would create new CZ 4 in a portion of Val Verde County and slightly expand current CZ 3 in Medina and Uvalde counties. A CZ is a specific location in which CWD has been detected or the department has determined, using the best available science and data, that CWD detection is probable. With respect to the CZ that would be established by this rulemaking, the department assumes the highest probability of additional detection exists within approximately a five-mile radius from the approximate location where CWD is detected in a free-ranging deer and within approximately a two-mile radius from the location where it has been detected within a captive population. Although the CZ designation imposes mandatory check station requirements and deer carcass movement restrictions for hunter-harvested deer, it is not necessary for hunters to be aware of or concerned with CZ boundaries, since the CZ is wholly within an SZ where mandatory check station requirements and deer carcass movement restrictions for hunter-harvested deer also apply. This rulemaking does not create a CZ in Kimble County for two reasons. First, the discovery occurred in a breeder deer facility, which is required by law to be designed and built to both prevent the free movement of deer and contact with free-ranging deer, which is imperative for the control and management of CWD. Second, the facility where CWD was discovered is operating under a Texas Animal Health Commission herd plan, which restricts deer movement and requires CWD testing at an equal or higher level to what is required in a CZ.

        The proposed amendment to §65.82, concerning Surveillance Zones; Restrictions, would create new SZ 4 in a portion of Val Verde County surrounding proposed new CZ 4 and new SZ 5 in Kimble County. An SZ is a department-defined geographic area in this state within which the department has determined, using the best available science and data, that the presence of CWD could reasonably be expected. The SZ in Val Verde County represents an approximately 15-mile buffer around CZ 4; in Kimble County the buffer is approximately five miles because the detection occurred in a deer breeding facility (a confined herd).

        Within CZs and SZs, the movement of live deer is restricted and presentation of harvested deer at department check stations is mandatory. In addition, deer carcass movement restrictions set forth in §65.88 of Subchapter B, Division 1 apply to deer harvested within a CZ or SZ. The boundaries of proposed the new CZs and SZs have been tailored to as much as possible follow recognizable features such as roadways and power line rights-of-way, and county boundaries, and the department notes that any designation of a CZ or SZ is always accompanied by a robust public awareness effort.

2. Fiscal Note.

        Clayton Wolf, Wildlife Division Director, has determined that for each of the first five years that the rules as proposed are in effect, there will be no fiscal implications to state and local governments as a result of enforcing or administering the rules as proposed, as department personnel currently allocated to the administration and enforcement of disease management activities will administer and enforce the rules as part of their current job duties and resources.

3. Public Benefit/Cost Note.

        Mr. Wolf also has determined that for each of the first five years the new rules as proposed are 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 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.

        (B) There will be no adverse economic impact on persons required to comply with the rules as proposed.

        (C) 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 and micro-businesses. As required by Government Code, §2006.002(g), in April 2008, the Office of the Attorney General issued guidelines to assist state agencies in determining a proposed rule’s potential adverse economic impact on small businesses. These guidelines state that “[g]enerally, there is no need to examine the indirect effects of a proposed rule on entities outside of an agency’s regulatory jurisdiction.” The guidelines state that an agency need only consider a proposed rule’s “direct adverse economic impacts” to small businesses and micro-businesses to determine if any further analysis is required. The guidelines also list examples of the types of costs that may result in a “direct economic impact.” Such costs may include costs associated with additional recordkeeping or reporting requirements; new taxes or fees; lost sales or profits; changes in market competition; or the need to purchase or modify equipment or services.

        The department has determined that because the proposed rules affecting Val Verde County will not result in any direct economic effect on any small businesses, micro-businesses, or rural community, neither the economic impact statement nor the regulatory flexibility analysis described in Government Code, Chapter 2006, is required.

        Although there is one deer breeder facility that would be included within the altered CZ in Medina and Uvalde counties created by the proposed amendment, that facility contains no deer and cannot accept new deer because it has been designated non-movement qualified (NMQ) under the provisions of Subdivision 2 of this subchapter. Similarly, only one deer breeding facility in Kimble County would be affected by the rules; it too, is NMQ. Therefore, the portion of the proposed amendment to §65.81 that affects Kimble, Medina, and Uvalde counties will not result in any direct economic effect on any small businesses, micro-businesses, or rural communities.

        (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 rules as proposed will not result in direct impacts to local economies.

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

        (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 new rules. Any impacts resulting from the discovery of CWD in or near private real property would be the result of the discovery of CWD and not the proposed rules.

        (F) In compliance with the requirements of Government Code, §2001.0221, the department has prepared the following Government Growth Impact Statement (GGIS).  The rules 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) not create a new regulation;

                 (6) expand an existing regulation (by creating new areas subject to the rules governing CZs and SZs), but will otherwise not limit or repeal an existing regulation;

                 (7) neither increase nor decrease the number of individuals subject to regulation; and

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

4. Request for Public Comment.

        Comments on the proposed rule may be submitted to Mitch Lockwood, Texas Parks and Wildlife Department, 4200 Smith School Road, Austin, Texas, 78744; (830) 792-9677 (e-mail: mitch.lockwood@tpwd.texas.gov); or via the department’s website at www.tpwd.texas.gov.

5. Statutory Authority.

        The amendments are 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; Subchapters R and R-1, which authorize the commission to establish the conditions of a deer management permit for white-tailed and mule deer, respectively; 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 amendments affect Parks and Wildlife Code, Chapter 43, Subchapters C, E, L, R, R-1, 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: -99.29398096800, 29.63444908360; -99.29332773120, 29.63427752770; -99.29197515170, 29.63439690090; -99.28980120500, 29.63446380410; -99.28762690610, 29.63440631430; -99.28546157340, 29.63422467720; -99.28331448540, 29.63391967310; -99.28119484540, 29.63349260780; -99.27911173640, 29.63294531180; -99.27707408560, 29.63228013080; -99.27509062400, 29.63149991510; -99.27316985040, 29.63060800860; -99.27131999510, 29.62960823290; -99.26954898230, 29.62850487190; -99.26786439810, 29.62730265490; -99.26627345800, 29.62600673210; -99.26478297540, 29.62462265680; -99.26339933220, 29.62315635870; -99.26212845190, 29.62161412050; -99.26097577450, 29.62000254920; -99.25994623180, 29.61832854980; -99.25904422740, 29.61659929130; -99.25852031490, 29.61543045890; 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Figure: 31 TAC §65.81(1)(C)

        (D) Containment Zone 4: That portion of the state lying within the boundaries of a line beginning in Val Verde County at the International Bridge and proceeding northeast along Spur 239 to U.S. 90; thence north along U.S. 90 to the intersection of U.S. 277/377, thence north along U.S. 277/377 to the U.S. 277/377 bridge at Lake Amistad (29.496183°, -100.913355°), thence west along the southern shoreline of Lake Amistad to International boundary at Lake Amistad dam, thence south along the Rio Grande River to the International Bridge on Spur 239.

                         (E)[(D]) Existing CZs may be modified and additional CZs may be designated as necessary by the executive director as provided in §65.84 of this title (relating to Powers and Duties of the Executive Director).

                 (2) (No change.)

        §65.82. Surveillance Zones; Restrictions. The areas described in paragraph (1) of this section are SZs.

                 (1) Surveillance Zones.

                         (A) – (C) (No change.)

                         (D) Surveillance Zone 4: That portion of the state lying within a line beginning in Val Verde County at the confluence of Sycamore Creek and the Rio Grande River (29.242341°, -100.793906°); thence northeast along Sycamore Creek to U.S. 277; thence northwest on U.S. 277 to Loop 79; thence north along Loop 79 to the Union Pacific Railroad; thence east along the Union Pacific Railroad to Liberty Drive (north entrance to Laughlin Air Force Base); thence north along Liberty Drive to U.S. 90; thence west along U.S. 90 to Loop 79; thence north along Loop 79 to the American Electric Power (AEP) Ft. Lancaster-to-Hamilton Road 138kV transmission line (29.415542°, -100.847993°); thence north along the AEP Ft. Lancaster-to-Hamilton Road 138kV transmission line to a point  where the AEP Ft. Lancaster-to-Hamilton Road 138kV transmission line turns northwest (29.528552°, -100.871618°); thence northwest along the AEP Ft. Lancaster-to-Hamilton Road 138kV transmission line to the AEP Ft. Lancaster-to-Hamilton Road maintenance road (29.569259°, -100.984758°); thence along the AEP Ft. Lancaster-to-Hamilton Road maintenance road to Spur 406; thence northwest along Spur 406 to U.S. 90; thence south along U.S. 90 to Box Canyon Drive; thence west along Box Canyon Drive to Bluebonnet Drive; thence southwest along Bluebonnet Drive to Lake Drive; thence south along Lake Drive to Lake Amistad (29.513298°, -101.172454°), thence southeast along the International Boundary to the International Boundary at the Lake Amistad dam; thence southeast along the Rio Grande River to the confluence of Sycamore Creek (29.242341°, -100.793906°). 

                         (E) Containment Zone 5: That portion of the state lying within the boundaries of a line beginning on U.S. 83 at the Kerr/Kimble County line; thence north along U.S. 83 to I.H. 10; thence northwest along on I.H. 10 to F.M. 2169; thence east along F.M. 2169 to County Road (C.R.) 410; thence east along C.R. 410 to C.R. 412; thence south along C.R. 412 to C.R. 470; thence east along C.R. 470 to C.R. 420; thence south along C.R. 420 to F.M. 479; thence east along F.M. 479 to C.R. 433; thence south along C.R. 433 to U.S. 290; thence west along U.S. 290 to I.H. 10; thence southeast along I.H. 10 to the Kerr/Kimble County line; thence west along the Kerr/Kimble County line to U.S. 83.

                         (F)[(D)] Existing SZs may be modified and additional SZs may be designated as necessary by the executive director as provided in §65.84 of this title (relating to Powers and Duties of the Executive Director).

                 (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