[Federal Register Volume 64, Number 238 (Monday, December 13, 1999)]
[Proposed Rules]
[Pages 69457-69464]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-32235]
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DEPARTMENT OF COMMERCE
National Oceanic and Atmospheric Administration
50 CFR Part 679
[Docket No. 991207321-9321-01; I.D. 111899A]
Groundfish Fishery of the Gulf of Alaska; Fisheries of the
Exclusive Economic Zone; Gulf of Alaska; Proposed 2000 Harvest
Specifications for Groundfish
AGENCY: National Marine Fisheries Service (NMFS), National Oceanic and
Atmospheric Administration (NOAA), Commerce.
ACTION: Proposed 2000 specifications for groundfish and associated
management measures; request for comments.
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SUMMARY: NMFS proposes 2000 harvest specifications, reserves, and
apportionments for groundfish; Pacific halibut prohibited species catch
(PSC) limits; and assumed mortality rates for the groundfish fishery of
the Gulf of Alaska (GOA). This action is necessary to establish harvest
specifications for GOA groundfish for the 2000 fishing year. The
intended effect of this action is to conserve and manage the groundfish
resources of the GOA and to provide an opportunity for public
participation in the annual groundfish specification process.
DATES: Comments must be received by January 12, 2000.
ADDRESSES: Comments may be sent to Sue Salveson, Assistant Regional
Administrator, Sustainable Fisheries Division, Alaska Region, NMFS,
P.O. Box 21668, Juneau, AK 99802-1668, Attn: Lori Gravel. Comments also
may be sent via facsimile (fax) to 907-586-7465. Comments will not be
accepted if submitted via e-mail or Internet. Courier or hand delivery
of comments may be made to NMFS in the Federal Building, Room 453, 709
West 9th Street, Juneau, AK 99801.
Copies of the Draft Environmental Assessment/Initial Regulatory
Flexibility Analysis (EA/IRFA) prepared for this action and the
Preliminary 2000 Stock Assessment and Fishery Evaluation (SAFE) Report,
dated September 1999, are available from the North Pacific Fishery
Management Council, 605 West 4th Ave., Suite 306, Anchorage, AK 99501-
2252 (907-271-2809).
FOR FURTHER INFORMATION CONTACT: Thomas Pearson, 907-481-1780, fax 907-
481-1781, or tom.pearson@noaa.gov.
SUPPLEMENTARY INFORMATION:
Background for the 2000 Proposed Specifications
Federal regulations at 50 CFR part 679 implement the Fishery
Management Plan for Groundfish of the Gulf of Alaska (FMP) and govern
the groundfish fisheries in the GOA. The North Pacific Fishery
Management Council (Council) prepared the FMP, and NMFS approved it
under the authority of the Magnuson-Stevens Fishery Conservation and
Management Act. General regulations that also pertain to the U.S.
fisheries appear at 50 CFR part 600.
The FMP and implementing regulations require NMFS, after
consultation with the Council, to specify annually the total allowable
catch (TAC) for each target species and for the ``other species''
category, the sum of which must be within the optimum yield range of
116,000 to 800,000 metric tons (mt) (Sec. 679.20 (a)(1)(ii)).
Regulations under Sec. 679.20(c)(1) further require NMFS to publish
annually, and solicit public comment on, proposed annual TACs, halibut
PSC amounts, seasonal allowances of pollock, and inshore/offshore
Pacific cod. The proposed specifications set forth in tables 1 to 6 of
this document satisfy these requirements. For 2000, the sum of the
proposed TAC amounts is 306,535 mt. Under 679.20(c)(3), NMFS will
publish the final specifications for 2000 after: (1) considering
comments received within the comment period (see DATES); and (2)
consulting with the Council.
Regulations at Sec. 679.20(c)(2)(i) provide that interim
specifications become effective 0001 hours, Alaska local time (A.l.t.)
January 1 and remain in effect until superseded by the final harvest
specifications. The regulations provide that the interim specifications
will be established as one-fourth of each proposed TAC and
apportionment thereof (not including the reserves and the first
seasonal allowance of pollock), one-fourth of the proposed halibut PSC
amounts, and the proposed first seasonal allowance of pollock. NMFS
will publish interim specifications for the 2000 fishing year in a
separate Federal Register document. No fishing is authorized before
NMFS files interim specifications with the Office of the Federal
Register.
Proposed Acceptable Biological Catch (ABC) and TAC Specifications
The proposed ABC and TAC for each species are based on the best
available biological and socioeconomic information, including projected
biomass trends, information on assumed distribution of stock biomass,
and revised technical methods used to calculate stock biomass. This
information was compiled by the Council's GOA Plan Team and is
presented in the preliminary 2000 SAFE report for the GOA groundfish
fisheries, dated September 1999. The Plan Team annually produces such a
document as the first step in the process of specifying TACs. The SAFE
report contains a review of the latest scientific analyses and
estimates of each species' biomass and other biological parameters, as
well as summaries of the available information on the GOA ecosystem and
the economic condition of the groundfish fisheries off Alaska. From
these data and analyses, the Plan Team estimates an ABC for each
species category.
The GOA Plan Team acknowledged that for purposes of the proposed
2000 overfishing levels and ABC amounts, the best information currently
available is set forth in the final SAFE report for the 1999 GOA
groundfish fisheries dated November 1998. The Plan Team further
acknowledged that information on the status of stocks will be updated
with the 1999 survey results and reconsidered by the Plan Team at its
November 1999 meeting and will be included in the final 2000 SAFE
report.
In October 1999, the Scientific and Statistical Committee (SSC),
Advisory Panel (AP), and Council reviewed the Plan Team's preliminary
recommendations to roll over 1999 ABC, overfishing, and TAC amounts,
and to reconsider these amounts at the December 1999 Council meeting
after new status of stocks information has been incorporated by the
Plan Team into a final SAFE report. The SSC, AP, and Council concurred
with the Plan Team's recommendations. However, the Plan Team's
recommendation to roll over the 1999 groundfish harvest specifications
for this action did not take into account the overfishing definitions
approved in the Bering Sea and Aleutian Islands FMP and GOA FMP
Amendments 56/56. Those overfishing definitions were used in August
1999 to reanalyze the status of the groundfish stocks in the BSAI and
GOA. That analysis is presented in the draft EA prepared for this
action. The
[[Page 69458]]
overfishing levels in these proposed specifications reflect that
analysis. None of the Council's proposed TACs for 1999 exceed the
proposed ABC for any species category (Table 1). Therefore, NMFS finds
that the proposed TACs are consistent with the best available
information on the biological condition of the groundfish stocks.
Specification and Apportionment of TAC Amounts and Reserves
The proposed 2000 TAC amounts equal the 1999 TAC amounts for each
species. NMFS finds that the recommended proposed TAC amounts are
consistent with the biological condition of groundfish stocks as
adjusted for other biological and socioeconomic considerations,
including maintaining the total TAC within the required OY range of
116,000 to 800,000 mt.
The reserves for the GOA (under Sec. 679.20(b)(2)) are 20 percent
of the TAC amounts for pollock, Pacific cod, flatfish target species
categories, and ``other species.'' The GOA groundfish TAC amounts have
been fully utilized by the respective domestic target species
categories since 1987, and NMFS expects the same to occur in 2000. NMFS
proposes apportionment of all the reserves to the respective target
species categories except Pacific cod. The Pacific cod fishery in the
GOA has become increasingly difficult to manage. The increased number
of participants, unexpected increases in harvest rates, and unexpected
shifts to other management areas and target species in the GOA have
resulted in overharvests of Pacific cod in some areas. Therefore, NMFS
proposes initially to reserve 20 percent of the Pacific cod TACs in the
GOA as a management buffer to prevent exceeding the Pacific cod TAC.
Table 1 lists the proposed 2000 ABC, TAC, and initial TAC amounts
(for Pacific cod only), overfishing levels, and initial apportionments
of groundfish in the GOA. The apportionment of TAC amounts among
fisheries is set forth in the following tables. These proposed
specifications are subject to change as a result of public comment,
analysis of the current biological condition of the groundfish stocks,
new information regarding the fishery, and consultation with the
Council at its December 1999 meeting.
Table 1.--Proposed 2000 ABCs, TACs, initial TACs (Pacific cod only) and overfishing levels of groundfish for the
combined Western/Central (W/C), Western (W), Central (C), and Eastern (E) Regulatory Areas and in the West
Yakutat (WYK), Southeast Outside (SEO), and Gulf-Wide (GW) Districts of the Gulf of Alaska.
[Values are in metric tons.]
----------------------------------------------------------------------------------------------------------------
Species Area \1\ ABC TAC Initial TAC Overfishing
----------------------------------------------------------------------------------------------------------------
Pollock \2\
Subtotal............. W/C.............. 92,480 92,480 .............. 157,000
WYK...................... (640)............ .............. 2,110 .............. ..............
SEO...................... (650)............ .............. 6,330 .............. ..............
Subtotal............. E................ 8,440 8,440 .............. 14,400
---------------------------------------------------------------
Total............ ................. 100,920 100,920 .............. 171,400
================================================================================================================
Pacific cod \3\
W................ 29,540 23,630 18,904 ..............
C................ 53,170 42,935 34,348 ..............
E................ 1,690 1,270 1,016 ..............
---------------------------------------------------------------
Total............ ................. 84,400 67,835 54,268 113,000
================================================================================================================
Flatfish \4\ (deep-water)
W................ 240 240 .............. ..............
C................ 2,740 2,740 .............. ..............
WYK.............. 1,720 1,720 .............. ..............
SEO.............. 1,350 1,350 .............. ..............
---------------------------------------------------------------
Total............ ................. 6,050 6,050 .............. 8,070
================================================================================================================
Rex sole
W................ 1,190 1,190 .............. ..............
C................ 5,490 5,490 .............. ..............
WYK.............. 850 850 .............. ..............
SEO.............. 1,620 1,620 .............. ..............
---------------------------------------------------------------
Total............ ................. 9,150 9,150 .............. 11,920
================================================================================================================
Flathead sole
W................ 8,440 2,000 .............. ..............
C................ 15,630 5,000 .............. ..............
WYK.............. 1,270 1,270 .............. ..............
SEO.............. 770 770 .............. ..............
---------------------------------------------------------------
Total............ ................. 26,110 9,040 .............. 34,010
================================================================================================================
Flatfish \5\ (shallow-water)
W................ 22,570 4,500 .............. ..............
C................ 19,260 12,950 .............. ..............
WYK.............. 250 250 .............. ..............
[[Page 69459]]
SEO.............. 1,070 1,070 .............. ..............
---------------------------------------------------------------
Total............ ................. 43,150 18,770 .............. 53,400
================================================================================================================
Arrowtooth flounder
W................ 34,400 5,000 .............. ..............
C................ 155,930 25,000 .............. ..............
WYK.............. 13,260 2,500 .............. ..............
SEO.............. 13,520 2,500 .............. ..............
---------------------------------------------------------------
Total............ ................. 217,110 35,000 .............. 258,000
================================================================================================================
Sablefish \6\
W................ 1,820 1,820 .............. ..............
C................ 5,590 5,590 .............. ..............
WYK.............. .............. 2,090 .............. ..............
SEO.............. .............. 3,200 .............. ..............
Subtotal............. E................ 5,290 5,290 .............. ..............
---------------------------------------------------------------
Total............ ................. 12,700 12,700 .............. 15,000
================================================================================================================
Pacific \7\ ocean perch
W................ 1,850 1,850 .............. 2,140
C................ 6,760 6,760 .............. 7,830
WYK.............. 820 820 .............. 5,230
SEO.............. 3,690 3,160 .............. ..............
Subtotal............. E................ .............. .............. .............. 5,230
---------------------------------------------------------------
Total............ ................. 13,120 12,590 .............. 15,200
================================================================================================================
Short raker/rougheye \8\
W................ 160 160 .............. ..............
C................ 970 970 .............. ..............
E................ 460 460 .............. ..............
---------------------------------------------------------------
Total............ ................. 1,590 1,590 .............. 2,360
================================================================================================================
Other rockfish 9,10,11
W................ 20 20 .............. ..............
C................ 650 650 .............. ..............
WYK.............. 470 470 .............. ..............
SEO.............. 4,130 4,130 .............. ..............
---------------------------------------------------------------
Total............ ................. 5,270 5,270 .............. 6,940
================================================================================================================
Northern Rockfish 10,12
W................ 840 840 .............. ..............
C................ 4,150 4,150 .............. ..............
E................ N/A \15\ N/A .............. ..............
---------------------------------------------------------------
Total............ ................. 4,990 4,990 .............. 7,340
================================================================================================================
Pelagic shelf rockfish \13\
W................ 530 530 .............. ..............
C................ 3,370 3,370 .............. ..............
WYK.............. 740 740 .............. ..............
SEO.............. 240 240 .............. ..............
---------------------------------------------------------------
Total............ ................. 4,880 4,880 .............. 6,670
================================================================================================================
Thornyhead rockfish
W................ 260 260 .............. ..............
C................ 700 700 .............. ..............
E................ 1,030 1,030 .............. ..............
---------------------------------------------------------------
Total............ ................. 1,990 1,990 .............. 2,370
================================================================================================================
Demersal shelf rockfish \11\. SEO.............. 560 560 .............. 698
[[Page 69460]]
Atka mackerel................ GW............... 600 600 .............. 6,200
Other \14\ species........... GW............... N/A \15\ 14,600
===============================================================
TOTAL\16\........ ................. 532,590 306,535 .............. 712,578
================================================================================================================
----------------------------------------------------------------------------------------------------------------
\1\ Regulatory areas and districts are defined at Sec. 679.2.
\2\ NMFS is not apportioning pollock among the Central and Western Regulatory Areas until permanent reasonable
and prudent alternatives can be implemented that would avoid the likelihood that the pollock fisheries off
Alaska will jeopardize the continued existence of the western population of Steller sea lions or adversely
modify its critical habitat. In the Eastern Regulatory Area, pollock is not divided by seasonal allowances.
\3\ Pacific cod is allocated 90 percent for processing by the inshore component and 10 percent for processing by
the offshore component. Component allocations are shown in Table 4.
\4\ ``Deep water flatfish'' means Dover sole, Greenland turbot, and deepsea sole.
\5\ ``Shallow water flatfish'' means flatfish not including ``deep water flatfish,'' flathead sole, rex sole, or
arrowtooth flounder.
\6\ Sablefish is allocated to trawl and hook-and-line gears (Table 2).
\7\ ``Pacific ocean perch'' means Sebastes alutus.
\8\ ``Shortraker/rougheye rockfish'' means Sebastes borealis (shortraker) and S. aleutianus (rougheye).
\9\ ``Other rockfish'' in the Western and Central Regulatory Areas and in the West Yakutat District means slope
rockfish and demersal shelf rockfish. The category ``other rockfish'' in the Southeast Outside District means
Slope rockfish.
\10\ ``Slope rockfish'' means Sebastes aurora (aurora), S. melanostomus (blackgill), S. paucispinis (bocaccio),
S. goodei (chilipepper), S. crameri (darkblotch), S. elongatus (greenstriped), S. variegatus (harlequin), S.
wilsoni (pygmy), S. babcocki (redbanded), S. proriger (redstripe), S. zacentrus (sharpchin), S. jordani
(shortbelly), S. brevispinis (silvergrey), S. diploproa (splitnose), S. saxicola (stripetail), S. miniatus
(vermilion), and S. reedi (yellowmouth). In the Eastern GOA only, ``slope rockfish'' also includes northern
rockfish, S. polyspinous.
\11\ ``Demersal shelf rockfish'' means Sebastes pinniger (canary), S. nebulosus (china), S. caurinus (copper),
S. maliger (quillback), S. helvomaculatus (rosethorn), S. nigrocinctus (tiger), and S. ruberrimus (yelloweye).
\12\ ``Northern rockfish'' means Sebastes polyspinis.
\13\ ``Pelagic shelf rockfish'' means Sebastes ciliatus (dusky), S. entomelas (widow), and S. flavidus
(yellowtail).
\14\ ``Other species'' means sculpins, sharks, skates, squid, and octopus. The TAC for ``other species'' equals
5 percent of the TACs of target species.
\15\ N/A means not applicable.
\16\ The total ABC is the sum of the ABCs for target species.
Proposed Apportionment of the Sablefish TAC Amounts to Users of
Hook-and-Line and Trawl Gear
Under Sec. 679.20(a)(4)(i) and (ii), sablefish TAC amounts for each
of the regulatory areas and districts are assigned to hook-and-line and
trawl gear. In the Central and Western Regulatory Areas, 80 percent of
the TAC amounts is allocated to vessels using hook-and-line gear and 20
percent is allocated to vessels using trawl gear. In the Eastern
Regulatory Area, 95 percent of the TAC is assigned to vessels using
hook-and-line gear and 5 percent is assigned to vessels using trawl
gear. Additionally the Eastern Regulatory Area hook-and-line allocation
of sablefish is apportioned between the West Yakutat and Southeast
Outside Districts based on biomass distribution. In the Eastern
Regulatory Area, the trawl allocation is not apportioned by district
although regulations at Sec. 679.7(b) prohibit the use of trawl gear
east of 140 deg. W. long. The trawl gear allocation in the Eastern
Regulatory Area may only be used for bycatch to support directed
fisheries for other trawl target species west of 140 deg. W. long.
Sablefish caught in the GOA with gear other than hook-and-line or trawl
must be treated as prohibited species and may not be retained. Table 2
shows the assignments of the proposed 2000 sablefish TAC amounts
between vessels using hook-and-line and trawl gears.
[[Page 69461]]
Table 2. Proposed 2000 Sablefish TAC Specifications in the Gulf of
Alaska and Allocations Thereof to Hook-and-Line and Trawl Gear.
[Values are in metric tons.]
------------------------------------------------------------------------
Hook-and-line Trawl
Area/District TAC apportionment apportionment
------------------------------------------------------------------------
Western...................... 1,820 1,456 364
Central...................... 5,590 4,472 1,118
West Yakutat................. 2,090 1,825 265
Southeast Outside............ 3,200 3,200 0
------------------------------------------
Total.................... 12,700 10,953 1,747
------------------------------------------------------------------------
Proposed Apportionments of Pollock TAC Among Regulatory Areas and
Seasons, and Allocations for Processing by Inshore and Offshore
Components
NMFS is not establishing seasons or apportioning pollock TAC among
the regulatory areas in the Central and Western GOA Regulatory Areas at
this time. NMFS is preparing a proposed rule that would permanently
implement reasonable and prudent alternatives (RPA's) to avoid the
likelihood that the pollock fisheries off Alaska will jeopardize the
continued existence of the western population of Steller sea lions or
adversely modify its critical habitat. Three types of management
measures would be implemented for the pollock fisheries of the Bering
Sea and Aleutian Islands Management Area (BSAI) and GOA: (1) Measures
to temporally disperse fishing effort, (2) measures to spatially
disperse fishing effort, and (3) measures to provide full protection
from pollock fisheries that compete with Steller sea lions for prey in
waters immediately adjacent to rookeries and important haulouts. Final
measures must be effective prior to the start of the BSAI and GOA
pollock fisheries on January 20, 2000, or NMFS will be obligated under
the Endangered Species Act to close all fishing for pollock until such
measures can be implemented.
In the Eastern Regulatory Area pollock would be apportioned between
the West Yakutat and Southeast Outside Districts on an annual basis.
The pollock TAC in all regulatory areas would be allocated 100 percent
to vessels catching pollock for processing by the inshore component
after subtraction of amounts that the Regional Administrator, NMFS,
determines to be necessary to support the bycatch needs of the offshore
component in directed fisheries for other groundfish species
(Sec. 679.20(a)(6)(ii)). At this time, these bycatch amounts are
unknown. They would be determined during the fishing year.
Proposed Apportionments of Pacific Cod TAC Amounts
The apportionment of Pacific cod in all GOA regulatory areas would
be allocated at 90 percent of the Pacific cod TAC to vessels catching
Pacific cod for processing by the inshore component and 10 percent of
the Pacific cod TAC to vessels catching Pacific cod for processing by
the offshore component (Sec. 679.20(a)(6)(iii)). Inshore and offshore
component allocations of the proposed 54,268 mt initial TAC for Pacific
cod for each regulatory area are shown in Table 3.
Beginning in 1997, the Council recommended a GOA Pacific cod TAC
lower than the ABC to account for removals from the developing state
waters Pacific cod fishery. The Pacific cod TAC could be further
reduced for 2000 pending State action to increase the state waters
harvest of Pacific cod.
Table 3.--Proposed 2000 Allocation (Metric Tons) of Pacific Cod Initial
TAC Amounts in the Gulf of Alaska; Allocations for Processing by the
Inshore and Offshore Components
------------------------------------------------------------------------
Component Allocation
-------------------------
Regulatory area Initial TAC Inshore Offshore
(90%) (10%)
------------------------------------------------------------------------
Western.......................... 18,904 17,014 1,890
Central.......................... 34,348 30,913 3,435
Eastern.......................... 1,016 914 102
--------------------------------------
Total........................ 54,268 48,841 5,427
------------------------------------------------------------------------
``Other Species'' TAC
The FMP specifies that amounts for the ``other species'' category
are calculated as 5 percent of the combined TAC amounts for target
species. The GOA-wide ``other species'' TAC is calculated as 14,600 mt,
which is 5 percent of the sum of combined TAC amounts for the target
species.
Proposed Halibut PSC Limits
Under Sec. 679.21(d), annual Pacific halibut PSC limits are
established for trawl and hook-and-line gear and may be established for
pot gear. In October 1999, the Council recommended that NMFS re-
establish the 1999 halibut PSC limits of 2,000 mt for the trawl
fisheries and 300 mt for the hook-and-line fisheries, with 10 mt of the
hook-and-line limit allocated to the demersal shelf rockfish (DSR)
fishery in the Southeast Outside District and the remainder to the
remaining hook-and-line fisheries.
Regulations at Sec. 679.21(d)(4) authorize exemption of specified
nontrawl fisheries from the halibut PSC limit. The Council proposes to
exempt pot gear, jig gear, and the hook-and-line sablefish fishery from
the nontrawl halibut limit for 2000. The Council proposed these
exemptions because the halibut bycatch mortality experienced in the pot
gear
[[Page 69462]]
fisheries is relatively low (17 mt in 1996, 13 mt in 1997, 13 mt in
1998, and 44 mt in 1999) and because the halibut and sablefish
Individual Fishing Quota (IFQ) program, implemented in 1995, allows
retention of legal-sized halibut in the sablefish fishery by persons
holding IFQ permits for halibut.
Under Sec. 679.21(d)(5), NMFS seasonally apportions the halibut PSC
limits based on recommendations from the Council. The FMP requires that
the following information be considered by the Council in recommending
seasonal apportionments of halibut PSC limits: (1) Seasonal
distribution of halibut, (2) seasonal distribution of target groundfish
species relative to halibut distribution, (3) expected halibut bycatch
needs on a seasonal basis relative to changes in halibut biomass and
expected catches of target groundfish species, (4) expected bycatch
rates on a seasonal basis, (5) expected changes in directed groundfish
fishing seasons, (6) expected actual start of fishing effort, and (7)
economic effects of establishing of the target groundfish industry.
The final rule establishing the final 1999 groundfish and PSC
specifications (64 FR 12094, March 11, 1999) summarizes Council
findings with respect to each of the FMP considerations set forth here.
At this time, the Council's findings are unchanged from those set forth
in 1999. Pacific halibut PSC limits, and apportionments thereof, are
presented in Table 4. Regulations at Sec. 679.21(d)(5)(iii) specify
that any overages or shortfalls in a seasonal apportionment of a PSC
limit will be deducted from or added to the next respective seasonal
apportionment within the 2000 season.
Table 4.--Proposed 2000 Pacific Halibut PSC Limits, Allowances, and Apportionments.
[The Pacific halibut PSC limit for hook-and-line gear would be allocated to the demersal shelf rockfish (DSR)
fishery in the SE Outside District and other fisheries. The hook-and-line sablefish fishery is exempt from
halibut PSC limits. Values are in mt]
----------------------------------------------------------------------------------------------------------------
Trawl gear Hook-and-line gear
----------------------------------------------------------------------------------------------------------------
Other than DSR DSR
Dates Amount ------------------------------------------------------------------
Dates Amount Dates Amount
----------------------------------------------------------------------------------------------------------------
Jan 1-Mar 31................. 600 (30%) Jan 1-May 17.... 250 (86%) Jan 1-Dec 31... 10 (100%)
Apr 1-Jul 3.................. 400 (20%) May 18-Aug 31... 15 (5%) ............... ..............
Jul 4-Sep 30................. 600 (30%) Sep 1-Dec 31.... 25 (9%) ............... ..............
Oct 1-Dec 31................. 400 (20%) ................ .............. ............... ..............
---------------- ---------------- ---------------
Total.................... 2,000 (100%) .............. 290 (100%) ............. 10 (100%)
----------------------------------------------------------------------------------------------------------------
Regulations at Sec. 679.21(d)(3)(iii) authorize the apportionment
of the trawl halibut PSC limit to a deep-water species fishery
(comprising sablefish, rockfish, deep-water flatfish, rex sole, and
arrowtooth flounder) and a shallow-water species fishery (comprising
pollock, Pacific cod, shallow-water flatfish, flathead sole, Atka
mackerel, and ``other species''). The proposed apportionment for these
two fishery complexes is presented in Table 5.
Table 5. Proposed 2000 Apportionment of Pacific Halibut PSC Trawl Limits
Between the Deep-Water Species Complex and the Shallow-Water Species
Complex.
[Values are in metric tons.]
------------------------------------------------------------------------
Shallow
Season water Deep water Total
------------------------------------------------------------------------
January 20-March 31.............. 500 100 600
April 1-July 3................... 100 300 400
July 4-September 30.............. 200 400 600
--------------------------------------
Subtotal.....................
January 20-September 30.......... 800 800 1,600
October 1-December 31............ ........... ........... 400
------------
Total........................ ........... ........... 2,000
------------------------------------------------------------------------
Note: Pacific halibut PSC is not apportioned between shallow-water and
deep-water categories from October 1 through December 31.
The Council may recommend, or NMFS may make, some changes in the
seasonal, gear type, and fishing-complex apportionments of halibut PSC
limits for the final 2000 harvest specifications. NMFS considers the
following types of information in setting halibut PSC limits as
presented by, and summarized from, the preliminary 2000 SAFE Report, or
from public comment and testimony.
1. Estimated Halibut Bycatch in Prior Years
The best available information on estimated halibut bycatch is
available from data collected by observers during 1999. The calculated
halibut bycatch mortality by trawl, hook-and-line, and pot gear through
October 16, 1999, is 2,115 mt, 343 mt, and 44 mt, respectively, for a
total halibut mortality of 2,502 mt.
Halibut bycatch restrictions seasonally constrained trawl gear
fisheries during all quarters of the 1999 fishing year. Trawling for
the deep-water fishery complex was closed for the first quarter on
March 24 (64 FR 14840, March 29, 1999), for the second quarter on April
25 (64 FR 22815, April 28, 1999), for the third quarter on July 21 (64
FR 40293, July 26, 1999), and for the fourth quarter on October 16,
1999 (64 FR 56473, October 20, 1999). The
[[Page 69463]]
shallow-water fishery complex was closed for the first quarter on March
20 (64 FR 14155, March 24, 1999), for the second quarter on April 1 (64
FR 16654, April 6, 1999), for the third quarter on July 4 (64 FR 35080,
June 30, 1999), and for the fourth quarter on October 16, 1999 (64 FR
56473, October 20, 1999). The use of hook-and-line gear targeting
groundfish other than sablefish and DSR was closed for the first
trimester on April 24 (64 FR 22814, April 28, 1999), for the second
trimester on May 18 (64 FR 27476, May 20, 1999), and for the third
trimester on September 1 (64 FR 46317, August 25, 1999). The amount of
groundfish that might have been harvested if halibut had not been
seasonally limiting in 1999 is unknown. However, lacking market
incentives, some amounts of groundfish will not be harvested,
regardless of halibut PSC bycatch availability.
2. Expected Changes in Groundfish Stocks
The proposed 2000 ABC amounts for the species or species groups are
unchanged from 1999 amounts.
3. Expected Changes in Groundfish Catch
The total of the proposed 2000 TAC amounts for the GOA is 306,535
mt, which represents 100 percent of the sum of TAC amounts for 1999
(306,535 mt).
4. Current Estimates of Halibut Biomass and Stock Condition
The most recent information on halibut biomass and stock condition
may be found in the final SAFE report for 1999, dated November 1998.
New information will be incorporated in the final SAFE report for 2000.
The International Pacific Halibut Commission (IPHC) has added the
following information to the preliminary SAFE report for 2000, dated
September 1999: (1) Halibut viability information collected by
observers in 1998, (2) discard mortality rates (DMRs) have been
estimated for the 1998 groundfish fisheries, and (3) DMR
recommendations for year 2000 halibut bycatch monitoring.
5. Potential Impacts of Expected Fishing for Groundfish on Halibut
Stocks and U.S. Halibut Fisheries
The allowable commercial catch of halibut will be adjusted to
account for the overall halibut PSC mortality limit established for
groundfish fisheries. The 2000 groundfish fisheries are expected to use
the entire proposed halibut PSC limit of 2,300 mt. The allowable
directed commercial catch is determined by accounting for the
recreational catch, waste, and bycatch mortality and then providing the
remainder to the directed fishery. Groundfish fishing is not expected
to adversely affect the halibut stocks.
6. Methods Available for, and Costs of, Reducing Halibut Bycatch in
Groundfish Fisheries
Methods available for reducing halibut bycatch include: (1)
Reducing halibut bycatch rates through the Vessel Incentive Program;
(2) modifications to gear; (3) changes in groundfish fishing seasons;
(4) individual transferable quota programs; and (5) time/area closures.
Reductions in groundfish TAC amounts provide no incentive for
fishermen to reduce bycatch rates. Costs that would be imposed on
fishermen as a result of reducing TAC amounts depend on the species and
amounts of groundfish foregone.
Trawl vessels carrying observers for purposes of complying with
observer coverage requirements (50 CFR 679.50) are subject to the
Vessel Incentive Program. This program encourages trawl fishermen to
avoid high halibut bycatch rates while conducting groundfish fisheries
by specifying bycatch rate standards for various target fisheries.
Current regulations (Sec. 679.24(b)(1)(ii)) specify requirements
for tunnel openings for groundfish pots to reduce halibut bycatch. As a
result, low bycatch and mortality rates of halibut in pot fisheries
have justified exempting pot gear from PSC limits.
The regulations also define pelagic trawl gear in a manner intended
to reduce bycatch of halibut by displacing fishing effort off the
bottom of the sea floor when certain halibut bycatch levels are reached
during the fishing year. The definition provides standards for physical
conformation (Sec. 679.2, see authorized fishing gear) and performance
of the trawl gear in terms of crab bycatch (Sec. 679.7(a)(14)).
Furthermore, all hook-and-line vessel operators are required to employ
careful release measures when handling halibut bycatch
(Sec. 679.7(a)(13)). These measures are intended to reduce handling
mortality, to increase the amount of groundfish harvested under the
available halibut mortality bycatch limits, and to possibly lower
overall halibut bycatch mortality in groundfish fisheries.
The sablefish/halibut IFQ program (implemented in 1995) was
intended, in part, to reduce the halibut discard mortality in the
sablefish fishery.
NMFS and the Council will review the methods available for reducing
halibut bycatch listed here to determine their effectiveness, and will
initiate changes, as necessary, in response to this review or to public
testimony and comment.
Consistent with the goals and objectives of the FMP to reduce
halibut bycatch while providing an opportunity to harvest the
groundfish OY, NMFS proposes the assignments of 2,000 mt and 300 mt of
halibut PSC limits to trawl and hook-and-line gear, respectively. While
these limits would reduce the harvest quota for commercial halibut
fishermen, NMFS has determined that they would not result in unfair
allocation to any particular user group. NMFS recognizes that some
halibut bycatch will occur in the groundfish fishery, but the Vessel
Incentive Program, required modifications to gear, and implementation
of the halibut/sablefish IFQ program are intended to reduce adverse
impacts on halibut fishermen while promoting the opportunity to achieve
the OY from the groundfish fishery.
Halibut Discard Mortality Rates
The Council recommended that the assumed recommended halibut
mortality rates developed by staff of the IPHC for the 1999 GOA
groundfish fisheries be adopted for purposes of monitoring halibut
bycatch allowances established for the 2000 GOA groundfish fisheries.
The justification for these mortality rates is discussed in the final
SAFE report dated November 1998. Most of the IPHC's assumed mortality
rates were based on an average of discard mortality rates determined
from NMFS-observer data collected during 1997 and 1998. The proposed
mortality rates listed in Table 6 are subject to change pending the
results of an updated analysis on halibut mortality rates in the
groundfish fisheries that IPHC staff are scheduled to present to the
Council at its meeting in December 1999.
Table 6.--Proposed 2000 Assumed Pacific Halibut Mortality Rates for
Vessels Fishing in the Gulf of Alaska
[Listed values are percent of halibut bycatch assumed to be dead.]
------------------------------------------------------------------------
Mortality
Gear and target rate
------------------------------------------------------------------------
Hook-and-Line:
Pacific cod.............................................. 16
Rockfish................................................. 9
Other species............................................ 16
Trawl:
Midwater pollock......................................... 76
Rockfish................................................. 64
Shallow-water flatfish................................... 71
[[Page 69464]]
Pacific cod.............................................. 66
Deep-water flatfish...................................... 66
Flathead sole:
Catcher vessels...................................... 58
Catcher/processing vessels........................... 74
Rex sole................................................. 55
Bottom pollock........................................... 73
Atka mackerel............................................ 57
Sablefish................................................ 71
Other species............................................ 66
Pot:
Pacific cod.............................................. 6
Other species............................................ 6
------------------------------------------------------------------------
Classification
This action is authorized under 50 CFR 679.20 and is exempt from
review under E.O. 12866.
Pursuant to section 7 of the Endangered Species Act, NMFS has
completed a consultation on the effects of the 1999 to 2002 pollock and
Atka mackerel fisheries on listed species, including the Steller sea
lion, and designated critical habitat. The Biological Opinion prepared
for this consultation, dated December 3, 1998, concluded that the Atka
mackerel fisheries in the BSAI are not likely to jeopardize the
continued existence of Steller sea lions or adversely modify their
designated critical habitat. However, the Biological Opinion concluded
that the pollock fisheries in the BSAI and the GOA would cause jeopardy
and adverse modification.
NMFS is developing a proposed rule to permanently implement RPAs to
avoid the likelihood that the pollock fisheries off Alaska will
jeopardize the continued existence of the western population of Steller
sea lions or adversely modify its critical habitat. Final regulations
must be effective prior to the start of the BSAI and GOA pollock
fisheries on January 20, 2000, or NMFS will be obligated under the
Endangered Species Act to close all fishing for pollock until such
measures can be implemented.
NMFS must also complete a consultation on the effects of the 2000
BSAI groundfish fisheries on listed species, including the Steller sea
lion and salmon, and on designated critical habitat. These
consultations will be completed in December 1999 before the start of
the 2000 groundfish fishery. These consultations cannot be completed
until new fishery information is available in late November.
NMFS prepared a Draft EA/IRFA that describes the impact these
proposed specifications, if adopted, may have on small entities. The
preferred alternative would allow the GOA groundfish fisheries to
continue under final specifications set at 1999 levels until the TAC is
harvested or until the fishery is closed due to attainment of a PSC
limit, or for other management reasons. Under the preferred
alternative, the 2000 TACs would be based on the most recent scientific
information as reviewed by the Plan Team, SSC, AP, and Council and that
includes public testimony and comment from the September Plan Team and
October Council meetings. The preferred alternative also achieves
optimum yield while preventing overfishing. Small entities would
receive the maximum benefits under this alternative, in that they would
be able to harvest target species and species groups at the highest
available level based on stock status and ecosystem concerns. This
proposed rule would apply to all vessels harvesting groundfish in the
GOA. In 1998, 1,239 vessels caught groundfish in the GOA. NMFS has no
information to accurately determine which of these vessels represent
``small businesses'' for IRFA purposes. No reporting requirements exist
with this proposed action. NMFS is not aware of any other Federal rules
which duplicate, overlap or conflict with the proposed specifications.
The proposed rule would affect these vessels by authorizing fishing and
establishing harvest limits. The amounts proposed are the same as last
year's.
The establishment of differing compliance or reporting requirements
or timetables, the use of performance rather than design standards, or
exempting affected small entities from any part of this action would
not be appropriate because of the nature of this action.
Authority: 16 U.S.C. 773 et seq., 1801 et seq., and 3631 et seq.
Dated: December 8, 1999.
Penelope D. Dalton,
Assistant Administrator for Fisheries, National Marine Fisheries
Service.
[FR Doc. 99-32235 Filed 12-10-99; 8:45 am]
BILLING CODE 3510-22-P
