[Federal Register Volume 59, Number 239 (Wednesday, December 14, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-30727]
[[Page Unknown]]
[Federal Register: December 14, 1994]
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DEPARTMENT OF COMMERCE
National Oceanic and Atmospheric Administration
50 CFR Parts 611, 675, and 676
[Docket No. 941242-4342; I.D. 111494A]
Foreign Fishing; Groundfish Fishery of the Bering Sea and
Aleutian Islands; Limited Access Management of Federal Fisheries In and
Off of Alaska
AGENCY: National Marine Fisheries Service (NMFS), National Oceanic and
Atmospheric Administration (NOAA), Commerce.
ACTION: Proposed 1995 initial specifications of groundfish and
associated management measures and request for comments.
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SUMMARY: NMFS proposes 1995 initial total allowable catches (TACs) for
each category of groundfish and specifications for prohibited species
bycatch allowances for the groundfish fishery of the Bering Sea and
Aleutian Islands management area (BSAI). This action is necessary to
inform the public about proposed 1995 harvest specifications and
associated management measures. The intended effect is to conserve and
manage the groundfish resources in the BSAI and to provide an
opportunity for public participation in this decisionmaking process.
DATES: Comments must be submitted by January 9, 1995.
ADDRESSES: Comments must be sent to Ronald J. Berg, Chief, Fisheries
Management Division, Alaska Region, NMFS, P.O. Box 21668, Juneau, AK
99802-1668, Attn: Lori Gravel. The preliminary 1995 Stock Assessment
and Fishery Evaluation (SAFE) report may be requested from the North
Pacific Fishery Management Council, P.O. Box 103136, Anchorage, AK
99510, 907-271-2809.
FOR FURTHER INFORMATION CONTACT: Ellen R. Varosi, NMFS, 907-586-7228.
SUPPLEMENTARY INFORMATION: Groundfish fisheries in the BSAI are
governed by Federal regulations (50 CFR 611.93 and parts 675 and 676)
that implement the Fishery Management Plan for the Groundfish Fishery
of the Bering Sea and Aleutian Islands Area (FMP). The FMP was prepared
by the North Pacific Fishery Management Council (Council) and approved
by NMFS under the Magnuson Fishery Conservation and Management Act.
The FMP and implementing regulations require NMFS, after
consultation with the Council, to specify for each calendar year the
TAC for each target species and the ``other species'' category, the sum
of which must be within the optimum yield range of 1.4 million to 2.0
million metric tons (mt) (Sec. 675.20(a)(2)). Regulations under
Sec. 675.20(a)(7)(i) further require NMFS to publish annually and
solicit public comment on amounts of proposed annual TACs,
apportionments of each TAC, prohibited species catch (PSC) allowances,
and seasonal allowances of pollock. The specifications set forth in
Tables 1-7 of this action satisfy these requirements. For 1995, the
proposed sum of TACs is 2.0 million mt. Under Sec. 675.20(a)(7)(ii),
NMFS will publish the final annual TACs for 1995 and initial
apportionments thereof, after considering: (1) Comments received within
the comment period (see DATES), and (2) consultations with the Council
at its December 1994 meeting.
The specified TACs for each species are based on the best available
biological and socioeconomic information. At its September and December
meetings, the Council, its Advisory Panel, and its Scientific and
Statistical Committee (SSC), annually review biological information
about the condition of groundfish stocks in the BSAI. This information
is compiled by the Council's BSAI Groundfish Plan Team (Plan Team) and
is presented in the SAFE Report. The Plan Team annually produces such a
report 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, maximum sustainable yield (MSY),
acceptable biological catch (ABC) and other biological parameters, as
well as summaries of the economic condition of groundfish fisheries off
Alaska. A preliminary 1995 SAFE Report dated September 1994 provides an
update on status of stocks. These preliminary assessments will be
updated based on biological survey work done during the summer of 1994.
Assessments will be made available by the Plan Team in November 1994,
in the final edition of the 1995 SAFE Report. Final ABCs for the 1995
fishing year will be based on the most recent stock assessments. The
proposed ABCs adopted by the Council for the 1995 fishing year are
based on the best available scientific information, including projected
biomass trends, information on assumed distribution of stock biomass,
and revised technical methods used to calculate stock biomass.
Procedure for Estimating ABC
The Council bases its definition of ABC on the definition contained
in 50 CFR part 602--Guidelines For Fishery Management Plans. These
guidelines (Sec. 602.11(e)(1)) state,
ABC is a preliminary description of the acceptable harvest (or
range of harvests) for a given stock or stock complex. Its
derivation focuses on the status and dynamics of the stock,
environmental conditions, other ecological factors, and prevailing
technological characteristics of the fishery.
Under these guidelines, the Council is provided with the
flexibility needed to define overfishing appropriate to the individual
stock or species characteristics, as long as it is defined in a way
that allows the Council and NMFS to evaluate the condition of the stock
relative to the definition. Application of the overfishing definition
requires some flexibility, because the amount of data for different
stocks varies. The calculations used to derive preliminary overfishing
levels for a given stock or stock complex are described in the
preliminary 1995 SAFE Report dated September 1994.
Calculation of ABC varies among species, depending on the quality
of available data and prior knowledge of a species' stock status. The
Plan Team has adopted three steps for estimating ABCs. First, the
exploitable biomass of a stock is estimated. Second, the ABC for a
stock is calculated by multiplying an exploitation rate times the
estimated exploitable biomass. Various exploitation rates or fishing
mortality rates (F) may be used in this calculation, depending on the
data available and the degree of risk the Plan Team is willing to
accept. For example, the exploitation rate that would produce MSY
(FMSY) may be used when the stock is known to be in good
condition, high in abundance, and not in danger of drastic decline.
When more conservative stock management is desirable, a F0.1
harvest strategy is used to determine an exploitation rate. This
strategy determines a level of F at which the marginal increase in
yield-per-recruit due to an increase in F is 10 percent of the marginal
yield-per-recruit in a newly exploited fishery. Recruitment refers to
the growth of juvenile fish into the adult or exploitable population.
Generally, F0.1 is a more conservative exploitation rate than
FMSY. Another alternative is to use historical exploitation rates
when historical fishery data indicate that a stock is not affected
adversely by such rates. A switch in harvest strategy from F.35 to
F = natural mortality rate (M) can be used when current maturity
parameter estimates are unreliable. Finally, an empirical estimation of
ABC based on historical catch levels may be used when information is
insufficient to estimate the biomass of a stock. Details of
overfishing, ABC, and other calculation procedures are discussed in the
preliminary 1995 SAFE Report dated September 1994. This report is
available from the Council (see ADDRESSES).
The Plan Team's recommendations for preliminary ABCs for each
species for 1995 and other biological data are provided in the
preliminary 1995 SAFE Report. At its September 1994 meeting, the
Council's SSC reviewed the Plan Team's preliminary recommendations for
1995 ABCs. The SSC recommended revisions to the Plan Team's recommended
ABCs for Aleutian Basin (Bogoslof) pollock, Atka mackerel, and
Greenland turbot. The Council adopted the ABCs recommended by the SSC
(Table 1).
The Council recommended changes to the management of two species'
TAC amounts. First, the Pacific ocean perch TAC specified for the
Aleutians Islands subarea is subdivided among the Aleutians Islands
districts to avoid excessive depletions of the stock in localized
areas. In addition, the Council, at its June 1994 meeting, recommended
that flathead sole be separated from ``other flatfish'' to provide an
additional target species for purposes of retaining allowable amounts
of deep-water bycatch species, such as Greenland turbot.
Table 1.--Proposed 1995 Acceptable Biological Catch (ABC), Total Allowable Catch (TAC), Initial TAC (ITAC), and
Overfishing Levels of Groundfish in the Bering Sea and Aleutian Islands Area\1\,\2\
----------------------------------------------------------------------------------------------------------------
Overfishing
Species ABC TAC ITAC=DAP\3\ level
----------------------------------------------------------------------------------------------------------------
Pollock:
BS.......................................... 1,330,000 1,330,000 1,130,500 1,590,000
AI.......................................... 56,600 56,600 48,110 60,400
Bogoslof District........................... 20,000 1,000 850 147,000
Pacific cod..................................... 191,000 191,000 162,350 228,000
Sablefish:
BS.......................................... 540 540 446 ..............
AI.......................................... 2,800 2,800 2,275 ..............
Total................................... 3,340 3,340 2,721 4,160
Atka mackerel:
Western AI.................................. 71,810 10,000 8,500 ..............
Central AI.................................. 73,440 44,525 37,846 ..............
Eastern AI, BS.............................. 17,950 13,475 11,454 ..............
Total................................... 163,200 68,000 57,800 484,000
Yellowfin sole.................................. 230,000 150,325 127,776 269,000
Rock sole....................................... 313,000 75,000 63,750 363,000
Greenland turbot:
BS.......................................... 4,690 3,986 ..............
AI.......................................... 2,310 1,964 ..............
Total................................... 7,000 7,000 5,950 24,800
Arrowtooth flounder............................. 93,400 10,000 8,500 130,000
Flathead sole................................... 119,000 29,618 25,175 145,000
Other flatfish\4\............................... 106,000 26,382 22,425 125,000
Pacific ocean perch:
BS.......................................... 1,910 1,910 1,623 2,920
AI.......................................... 10,900 10,900 9,265 16,600
Western AI................................ 6,104 6,104 5,188 ..............
Central AI................................ 3,052 3,052 2,594 ..............
Eastern AI................................ 1,744 1,744 1,483 ..............
Other red rockfish:\5\
BS.......................................... 1,400 1,400 1,190 1,400
Sharpchin/Northern:
AI.......................................... 5,670 5,670 4,820 5,670
Shortraker/Rougheye:
AI.......................................... 1,220 1,220 1,037 1,220
Other rockfish:\6\
BS.......................................... 365 365 310 365
AI.......................................... 770 770 655 770
Squid\7\........................................ 3,110 3,110 2,643 ..............
Other Species\8\................................ 27,500 26,390 22,432 141,000
Totals.................................. 2,685,385 2,000,000 1,699,882 ..............
----------------------------------------------------------------------------------------------------------------
\1\Amounts are in metric tons. These amounts apply to the entire Bering Sea (BS) and Aleutian Islands (AI) area
unless otherwise specified. With the exception of pollock, and for the purpose of these specifications, the BS
includes the Bogoslof District.
\2\Zero amounts of groundfish are specified for Joint Venture Processing and Total Allowable Level of Foreign
Fishing.
\3\Except for the portion of the sablefish TAC allocated to hook-and-line and pot gear, 0.15 of each TAC is put
into a reserve. For the portion of the sablefish TAC allocated to vessels using hook-and-line or pot gear,
0.20 of the allocated TAC is reserved for use by CDQ participants. The ITAC for each species is the remainder
of the TAC after the subtraction of these reserves.
\4\``Other flatfish'' includes all flatfish species except for Pacific halibut (a prohibited species), flathead
sole, Greenland turbot, rock sole, and yellowfin sole.
\5\``Other red rockfish'' includes shortraker, rougheye, sharpchin, and northern.
\6\``Other rockfish'' includes all Sebastes and Sebastolobus species except for Pacific ocean perch, sharpchin,
northern, shortraker, and rougheye.
\7\Squid may be combined with ``other species'' category in the final initial specifications of TAC. The Council
will consider combining squid with the ``other species'' category at its December 1994 meeting.
\8\``Other species'' includes sculpins, sharks, skates, eulachon, smelts, capelin, and octopus. (The ``other
species'' category may include squid in the final 1995 initial specifications of TAC.)
The SSC's revisions to the ABCs recommended by the Plan Team for
Bogoslof pollock, Greenland turbot, and Atka mackerel are discussed
below.
Bogoslof Pollock. The Plan Team indicated in the preliminary 1995
SAFE Report that the current estimate of biomass of Aleutian Basin
pollock (490,000 mt) is the best estimate, assuming that no recruitment
to the stock has occurred, and that the natural mortality rate (M) is
0.2. Reassessment of the Bogoslof area hydroacoustic survey with new
threshold levels of abundance has not changed previous conclusions that
this stock has declined since 1988. The Plan Team assumed that no
recruitment occurred in 1994 or will occur in 1995, and projected a
biomass for 1995 of 490,000 mt using M = 0.20. The Plan Team then
calculated the F0.35 exploitation rate of 0.26 to derive an ABC of
127,000 mt. However, the SSC adjusted the biomass downward to 400,000
mt, based on the 1993 hydroacoustic estimate of biomass decayed by
natural mortality. The SSC then applied a natural mortality rate of M =
0.02 divided by 4 to the projected biomass. This leads to an ABC of
20,000 mt. Due to lack of recruitment predicted for 1994 and 1995, the
Council recommended a TAC of 1,000 mt to provide for bycatch in other
groundfish operations.
Greenland Turbot. In 1993, the Plan Team used a length-based stock
synthesis model to estimate the ABC, which was updated with catch and
survey data through October 1993. A more conservative exploitation rate
of F0.40 and an increased slope survey catchability coefficient of
0.75 was selected. These adjustments resulted in a conservative ABC of
17,200 mt. Continued poor recruitment and stock abundance levels since
the early 1980s led the SSC to recommend a continuation of the present
7,000 mt ABC for this species, until the assessment analysis containing
results from the 1994 bottom trawl survey is completed. The Council
concurred with this recommendation and set the TAC at 7,000 mt for this
species. The Council further recommended apportioning two-thirds of the
Greenland turbot TAC (4,690 mt) to the eastern Bering Sea, and one-
third of the TAC (2,310 mt) to the Aleutian Islands, in proportion to
the biomass estimates in these areas. The Council's recommendation is
intended to spread fishing effort over a larger area.
Atka Mackerel. The SSC accepted the Plan Team's 1995 estimate of
ABC (245,000 mt), although it expressed concern that the time series of
trawl surveys is short and inconsistent in coverage. The SSC also was
apprehensive about possible environmental problems that may result from
an increased catch of the magnitude implied by the Plan Team's estimate
of 1995 ABC. Atka mackerel is a prey species of northern fur seals and
Steller sea lions. During their migrations, northern fur seals (a
depleted species) feed heavily on Atka mackerel as they move through
the Aleutian passes. Given these concerns, the SSC recommended to
continue its 1992 through 1994 policy to phase in the Plan Team's
estimate of ABC over a 6-year period by adopting the 1994 biomass
estimate (816,000 mt) and raising the exploitation rate in steps. These
incremental steps are as follows: (M)(1)/6 in 1992, (M)(2)/6 in 1993,
(M)(3)/6 in 1994, (M)(4)/6 in 1995, (M)(5)/6 in 1996, and M in 1997.
According to this schedule, the recommended ABC for 1995 is (.6/
3)(816,000) = 163,200 mt. The main purpose of this approach is to
postpone a large ABC increase until new survey estimates are available
to evaluate the phase-in policy.
The Council recommended a 68,000 mt TAC for Atka mackerel in the
BSAI in 1995. The Council recommended apportionment of the TAC for Atka
mackerel among the AI management districts and the Bering Sea relative
to survey biomass estimates: 10,000 mt in the western area; 44,525 mt
in the central area; and 13,475 mt in the eastern area and Bering Sea
combined.
Proposed TAC Specifications
The Council developed its TAC recommendations (Table 1) based on
the preliminary ABCs as adjusted for other biological and socioeconomic
considerations, including maintaining the total TAC in the required OY
range of 1.4-2.0 million mt. Each of the Council's recommended TACs for
1995 is equal to or less than the final 1995 ABC for each species
category. Therefore, NMFS finds that the recommended proposed TACs are
consistent with the biological condition of groundfish stocks. The
preliminary ABCs, TACs, initial TACs (ITACs), overfishing levels, and
initial apportionments of groundfish in the BSAI area for 1995 are
given in Table 1 of this action. The apportionment of TACs among
fisheries and seasons is discussed below.
Apportionment of TAC
As required by Sec. 675.20(a)(3) and (a)(7)(i), each species' TAC
initially is reduced by 15 percent, except the hook-and-line and pot
gear allocation for sablefish. The sum of these 15 percent amounts is
the reserve. The reserve is not designated by species or species group,
and any amount of the reserve may be reapportioned to a target species
or the ``other species'' category during the year, providing that such
reapportionments do not result in overfishing.
The ITAC for each target species and the ``other species'' category
at the beginning of the year is apportioned between the domestic annual
harvest (DAH) category and the total allowable level of foreign fishing
(TALFF), if any. Each DAH amount is further apportioned between two
categories of U.S. fishing vessels. The domestic annual processing
(DAP) category includes U.S. vessels that process their catch onboard
or deliver it to U.S. fish processors. The joint venture processing
(JVP) category includes U.S. fishing vessels working in joint ventures
with foreign processing vessels authorized to receive catches in the
exclusive economic zone.
In consultation with the Council, the initial amounts of DAP and
JVP are determined by the Director, Alaska Region, NMFS (Regional
Director). Consistent with the final notices of 1991-94 initial
specifications, the Council recommended that 1995 DAP specifications be
set equal to ITAC and that zero amounts of groundfish be allocated to
JVP and TALFF. In making this recommendation, the Council considered
the capacity of DAP harvesting and processing operations and
anticipated that 1995 DAP operations will harvest the full TAC
specified for each BSAI groundfish species category. The proposed ABCs,
TACs, ITACs, overfishing levels, and initial apportionments of
groundfish in the BSAI area for 1995 are given in Table 1.
These proposed specifications are subject to change as a result of
public comment, analysis of the current biological condition of the
groundfish stocks, and consultation with the Council at its meeting
scheduled for December 7-11, 1994.
Regulations at Sec. 675.20(a)(7)(i) require that one-fourth of each
proposed ITAC and apportionment thereof, one-fourth of each PSC
allowance, and the first seasonal allowance of pollock be in effect on
January 1 on an interim basis, and remain in effect until superseded by
publication of the final initial specifications in the Federal Register
or until harvested. Proposed seasonal allowances of pollock and
prohibited species bycatch allowances are discussed below. The interim
ITAC specifications for the 1995 fishing year are 25 percent of the
ITACs listed in Table 1. NMFS is publishing interim 1995 ITAC
specifications as a separate document in the final rule section of
today's Federal Register.
Seasonal Allowances of Pollock TAC
Under Sec. 675.20(a)(2)(ii), the TAC of pollock for each subarea or
district of the BSAI area is divided, after subtraction of reserves
(Sec. 675.20(a)(3)), into two allowances. The first allowance will be
available for directed fishing from January 1 to April 15 (roe season).
The second allowance will be available from August 15 through the end
of the fishing year (non-roe season). On September 26, 1994, a proposed
rule was published in the Federal Register (59 FR 49051) that would
delay the opening of the pollock roe season for the offshore component
fishery to January 26th. If approved by NMFS, this season delay would
be effective for the 1995 fishing year.
In 1994 the seasonal allowance for the roe season was 45 percent
and the non-roe season 55 percent for the BS pollock fisheries. The
pollock TACs specified for the AI subarea and the Bogoslof District
were not seasonally apportioned. For 1995, the Council is considering
an alternative to the 1994 seasonal allowance that reduces the
allowance for pollock fisheries in the BS during the roe season to 40
percent and increases the pollock non-roe allowance to 60 percent
(Table 2). The Council declined to choose an alternative until its
December 1994 meeting. Regulations at Sec. 675.20(a)(7)(i) require that
the first seasonal allowance of pollock be in effect on January 1 on an
interim basis, and remain in effect until superseded by publication of
the final initial specifications in the Federal Register. NMFS proposes
seasonal allowances of 45 percent of the pollock ITAC specified for
each management subarea or district during the roe season and 55
percent during the non-roe season, but notes that these allowances are
subject to change as a result of public comment and consultation with
the Council at its December 1994 meeting.
When specifying seasonal allowances of the pollock TAC, the Council
and NMFS consider the following nine factors as specified in section
14.4.10 of the FMP:
1. Estimated monthly pollock catch and effort in prior years;
2. Expected changes in harvesting and processing capacity and
associated pollock catch;
3. Current estimates of, and expected changes in, pollock biomass
and stock conditions; conditions of marine mammal stocks; and biomass
and stock conditions of species taken as bycatch in directed pollock
fisheries;
4. Potential impacts of expected seasonal fishing for pollock on
pollock stocks, marine mammals, and stocks and species taken as bycatch
in directed pollock fisheries;
5. The need to obtain fishery-related data during all or part of
the fishing year;
6. Effects on operating costs and gross revenues;
7. The need to spread fishing effort over the year, minimize gear
conflicts, and allow participation by various elements of the
groundfish fleet and other fisheries;
8. Potential allocative effects among users and indirect effects on
coastal communities; and
9. Other biological and socioeconomic information that affects the
consistency of seasonal pollock harvests with the goals and objectives
of the FMP.
NMFS requests comments on the effects of the options for the
seasonal allowances being considered by the Council with respect to
these nine factors.
Apportionment of the Pollock TAC to the Inshore and Offshore
Components
Regulations at Sec. 675.20(a)(2)(iii) require that the proposed
1995 pollock ITAC specified for the BSAI be allocated 35 percent to
vessels catching pollock for processing by the inshore component and 65
percent to vessels catching pollock for processing by the offshore
component (Table 2). Definitions of these components are found at
Sec. 675.2.
Table 2.--Proposed Seasonal Allowances of the Inshore and Offshore Component Allocations of Pollock TACs1,2
--------------------------------------------------------------------------------------------------------------------------------------------------------
Roe season4 Non-roe season5
Subarea TAC ITAC3 -----------------------------------------------------------------
45% 40% 55% 60%
--------------------------------------------------------------------------------------------------------------------------------------------------------
Bering Sea:
Inshore........................................... .............. 395,675 178,054 158,270 217,621 237,405
Offshore.......................................... .............. 734,825 330,671 293,930 404,154 440,895
Total......................................... 1,330,000 1,130,500 508,725 452,200 621,775 678,300
Aleutian Islands:
Inshore........................................... .............. 16,838 .............. 16,838 .............. Remainder.
Offshore.......................................... .............. 31,272 .............. 31,272 .............. Do.
Total......................................... 56,600 48,110 .............. 48,110 .............. Do.
Bogoslof:
Inshore........................................... .............. 298 .............. 298 .............. Do.
Offshore.......................................... .............. 552 .............. 552 .............. Do.
Total......................................... 1,000 850 .............. 850 .............. Do.
--------------------------------------------------------------------------------------------------------------------------------------------------------
1TAC=total allowable catch.
2Based on an offshore component allocation of 0.65(TAC) and an inshore component allocation of 0.35(TAC).
3ITAC=initial TAC=0.85 of TAC.
4January 1 through April 15--based on a 45/55 or 40/60 split (roe=45 percent or 40 percent).
5August 15 through December 31--based on a 45/55 or 40/60 split (non-roe=55 percent or 60 percent).
Apportionment of the Pollock TAC to the Western Alaska Community
Development Quota
Regulations at Sec. 675.20(a)(3)(ii) require one-half of the
pollock TAC to be placed in the reserve for each subarea or district,
or 7.5 percent of each TAC to be assigned to a Community Development
Quota (CDQ) reserve for each subarea or district. Given the proposed
pollock TACs specified in Table 1, the 1995 CDQ reserve amounts for
each subarea are as follows:
------------------------------------------------------------------------
BSAI subarea Pollock CDQ
------------------------------------------------------------------------
Bering Sea............................................ 99,750 mt.
Aleutian Islands...................................... 4,245 mt .
Bogoslof.............................................. 75 mt.
------------------------------------------------------------------------
Under regulations governing the CDQ program at Sec. 675.27, NMFS
may allocate the 1995 pollock CDQ reserves to eligible Western Alaska
communities or groups of communities that have an approved Community
Development Plan (CDP). The State of Alaska received six CDP
applications pursuant to Sec. 675.27 and State of Alaska regulations at
6 AAC 93. All six applications were submitted in conformance with both
sets of regulations and have been fully reviewed by the State. Pending
approval by NMFS, 1995 allocations of the CDQ reserve to the successful
CDP recipients will be published in the Federal Register prior to the
1995 fishing year.
Apportionment of Pollock TAC to the Nonpelagic Trawl Gear Fishery
Regulations at Sec. 675.24(c)(2) authorize NMFS, in consultation
with the Council, to limit the amount of pollock TAC that may be taken
in the directed fishery for pollock using nonpelagic trawl gear. This
authority is intended to reduce the amount of halibut and crab bycatch
that occurs in nonpelagic trawl operations.
Regulations at Sec. 675.7 were implemented to limit the bycatch of
halibut and crab more effectively when directed fishing for pollock
with nonpelagic trawl gear is closed. However, continued reports of
high PSC have led the Council to consider an apportionment of the
pollock TACs to nonpelagic and pelagic trawl gears, as authorized under
Sec. 675.24(c)(2). The Council deferred recommending an allocation of
the pollock TACs to vessels using nonpelagic trawl gear until its
December 1994 meeting, when NMFS will provide information concerning
prohibited species bycatch amounts in the pelagic and nonpelagic trawl
gear fisheries.
Proposed Allocation of the Pacific cod TAC
Under Sec. 675.20(a)(2)(iv), 2 percent of the Pacific cod ITAC is
allocated to vessels using jig gear, 44 percent to vessels using hook-
and-line gear, and 54 percent to vessels using trawl gear. At its
September 1994 meeting, the Council proposed a seasonal apportionment
of the portion of the Pacific cod TAC allocated to the hook-and-line
and pot gear fisheries. The seasonal apportionments are intended to
provide for the harvest of Pacific cod when flesh quality and market
conditions are optimum and Pacific halibut bycatch rates are low. The
Council's recommendations for seasonal apportionments are set out in
Table 3 and are unchanged from the seasonal apportionments specified
for 1994 (59 FR 4009, January 28, 1994; 59 FR 21673, April 26, 1994).
These seasonal apportionments are based on: (1) Seasonal distribution
of Pacific cod relative to prohibited species distributions, (2)
expected variations in prohibited species bycatch rates experienced in
the Pacific cod fisheries throughout the year, and (3) economic effects
of any seasonal apportionment of Pacific cod on the hook-and-line and
pot gear fisheries.
Table 3.--1995 Gear Shares of the BSAI Pacific Cod Initial TAC
----------------------------------------------------------------------------------------------------------------
Seasonal apportionment
Gear Percent Share of -------------------------------------------------
of TAC ITAC (mt) Date Percent Amount (mt)
----------------------------------------------------------------------------------------------------------------
Jig..................................... 2 3,247 Jan. 1-Dec. 31.......... 100 3,247
Hook-and-line/pot gear.................. 44 71,434 Jan. 1-Apr. 30.......... 90 164,290
May 1-Aug. 31........... 10 7,143
Sep. 1-Dec. 31.......... (2) (2)
Trawl Gear.............................. 54 87,669 Jan. 1-Dec. 31.......... 100 87,669
Total................................... 100 162,350
----------------------------------------------------------------------------------------------------------------
1Any portion of the first seasonal apportionment that is not harvested by the end of the first season will
become available on September 1, the beginning of the third season.
2Remainder.
Sablefish Gear Allocation
Regulations under Sec. 675.24(c)(1) allocate sablefish TACs for
BSAI subareas between gear types. Regulations under Sec. 676.24(b)
require NMFS to withhold 20 percent of the hook-and-line and pot gear
sablefish allocation as a sablefish CDQ reserve. Gear allocations of
sablefish TACs and CDQ reserve are specified in Table 4.
Table 4.--1995 Gear Shares and CDQ Reserve of BSAI Sablefish TAC
----------------------------------------------------------------------------------------------------------------
Initial
Subarea Gear Percent of Share of TAC CDQ share
TAC (mt) TAC (mt) (mt)\1\
----------------------------------------------------------------------------------------------------------------
Bering Sea\2\................. Trawl......................... 50 270 230 N/A.
Hook-and-line/pot gear........ 50 270 216 54.
Total..................... .............................. .......... .......... 446 ............
Aleutian Islands.............. Trawl......................... 25 700 595 N/A.
Hook-and-line/pot gear........ 75 2,100 1,680 420.
Total..................... .............................. .......... .......... 2,275 ............
----------------------------------------------------------------------------------------------------------------
1Except for the sablefish hook-and-line and pot gear allocation 0.15 of TAC is apportioned to reserve. For the
portion of the sablefish TAC allocated to vessels using hook-and-line or pot gear, 0.20 of the allocated TAC
is reserved for use by CDQ participants, therefore, ITAC is the remainder of the TAC after the subtraction of
these reserves.
2Includes Bogoslof District.
Allocation of PSC Limits for Crab, Halibut, and Herring
PSC limits of red king crab and C. bairdi Tanner crab in Bycatch
Limitation Zones (50 CFR 675.2) of the BS subarea, and for Pacific
halibut throughout the BSAI area are specified under Sec. 675.21(a). At
this time, the 1995 PSC limits are:
1. Zone 1 trawl fisheries, 200,000 red king crabs;
2. Zone 1 trawl fisheries, 1 million C. bairdi Tanner crabs;
3. Zone 2 trawl fisheries, 3 million C. bairdi Tanner crabs;
4. BSAI trawl fisheries, 3,775 mt mortality of Pacific halibut;
5. BSAI nontrawl fisheries, 900 mt mortality of Pacific halibut,
pending the implementation of the IFQ program; and
6. BSAI trawl fisheries, 1,962 mt Pacific herring.
The PSC limit of Pacific herring caught while conducting any trawl
operation for groundfish in the BSAI is 1 percent of the annual eastern
Bering Sea herring biomass. At this time, the best estimate of 1995
herring biomass is 196,200 mt. This amount was derived using 1993
survey data and an age-structured biomass projection model developed by
the Alaska Department of Fish and Game (ADF&G). Therefore, the proposed
herring PSC limit for 1994 is 1,962 mt. This value is subject to
change, pending an updated forecast analysis of 1994 herring survey
data that will be presented to the Council by the ADF&G during the
Council's December 1994 meeting.
Regulations under Sec. 675.21(b) authorize the apportionment of
each PSC limit into PSC allowances for specified fishery categories.
Regulations at Sec. 675.21(b)(1)(iii) specify seven fishery categories
(midwater pollock, Greenland turbot/arrowtooth flounder/sablefish, rock
sole/other flatfish, yellowfin sole, rockfish, Pacific cod, and bottom
pollock/Atka mackerel/``other species''). Regulations at
Sec. 675.21(b)(2) authorize the apportionment of the nontrawl halibut
PSC limit among three fishery categories (Pacific cod hook-and-line
fishery, groundfish pot gear fishery, and other nontrawl fisheries).
The PSC allowances are listed in Table 5. In general, the fishery
bycatch allowances listed in Table 5 reflect the recommendations made
to the Council by its AP. These recommendations are unchanged from 1994
and were based on 1993 and 1994 bycatch amounts, anticipated 1995
harvest of groundfish by trawl gear and fixed gear, and assumed halibut
mortality rates in the different groundfish fisheries based on analyses
of 1991-1993 observer data. As in 1994, the Council proposed to exempt
the 1995 pot gear fisheries from halibut bycatch restrictions.
At its September 1994 meeting, the Council also recommended that
NMFS initiate rulemaking that would authorize exemption of the hook-
and-line sablefish fishery from the halibut PSC limit established for
the BSAI nontrawl fisheries. The Council recommended this because of
the 1995 implementation of the sablefish and halibut Individual Fishing
Quota (IFQ) program, which would allow legal-sized halibut to be
retained in the sablefish fishery. NMFS is preparing a proposed rule to
implement the Council's recommendation and to authorize the exemption
of the BSAI jig gear fisheries from the halibut PSC limit.
Regulations at Sec. 675.20(a)(7)(i) require that one-fourth of each
proposed PSC allowance be made available on an interim basis for
harvest at the beginning of the fishing year, until superseded by the
final initial specifications or until harvested. These interim PSC
bycatch allowances are 25 percent of the annual allowances listed in
Table 5.
Table 5.--Preliminary 1995 Prohibited Species Bycatch Allowances for the
BSAI Trawl and Nontrawl Fisheries
------------------------------------------------------------------------
Zone 1 Zone 2 BSAI-wide
------------------------------------------------------------------------
Trawl Fisheries
Red king crab, number of
animals:
Yelllowfin sole..... 40,000 .............. ..............
Rocksol/other
flat\1\............ 110,000 .............. ..............
Rockfish............ 0 .............. ..............
Turb/arrow/sab\2\/ro
ckfish............. 0 .............. ..............
Pacific cod......... 10,000 .............. ..............
Plck/Atka/othr\3\... 40,000 .............. ..............
-----------------
Total........... 200,000 .............. ..............
=================
C. bairdi Tanner crab,
number of animals:
Yellowfin sole...... 175,000 1,275,000 ..............
Rcksol/oth.flat..... 475,000 260,000 ..............
Turb/arrow/sabl..... 0 5,000 ..............
Rockfish............ 0 10,000 ..............
Pacific cod......... 175,000 200,000 ..............
Plck/Atka/othr...... 175,000 1,250,000 ..............
---------------------------------
Total........... 1,000,000 3,000,000 ..............
=================================
Pacific halibut,
mortality (mt):
Yellowfin sole...... .............. .............. 592
Rcksol/oth.flat..... .............. .............. 688
Turb/arrow/sabl..... .............. .............. 137
Rockfish............ .............. .............. 201
Pacific cod......... .............. .............. 1,200
Plck/Atka/othr...... .............. .............. 957
-----------------------------------------------
Total........... .............. .............. 3,775
===============================================
Pacific herring, mt:
Midwater pollock.... .............. .............. 1,419
Yellowfin sole...... .............. .............. 332
Rcksol/oth.flat..... .............. .............. 0
Turb/arrow/sabl..... .............. .............. 0
Rockfish............ .............. .............. 8
Pacific cod......... .............. .............. 25
Plck/Atka/othr\4\... .............. .............. 178
-----------------------------------------------
Total........... .............. .............. 1,962
===============================================
Nontrawl Fisheries
Pacific halibut,
mortality (mt):
Pacific cod Hook-and-
line............... .............. .............. 725
Other nontrawl...... .............. .............. 175
Groundfish pot gear. .............. .............. (\5\)
-----------------------------------------------
Total........... .............. .............. 900
------------------------------------------------------------------------
\1\Rock sole and other flatfish fishery category. A technical amendment
to add flathead sole to this fishery category will be prepared by NMFS
if the Council makes a final recommendation at its December 1994
meeting to break out flathead sole from the ``other flatfish'' species
group (see Table 1).
\2\Greenland turbot, arrowtooth flounder, and sablefish fishery
category.
\3\Pollock, Atka mackerel, and ``other species'' fishery category.
\4\Pollock other than midwater pollock, Atka mackerel, and ``other
species'' fishery category.
\5\Exempt.
At its September 1994 meeting, the Council recommended that the
proposed halibut bycatch allowances listed in Table 5 be apportioned
seasonally as shown in Table 6. These seasonal bycatch apportionments
are unchanged from 1994 and prohibited species bycatch allowances and
the seasonal apportionment of those allowances will be subject to
change at the December 1994 Council meeting, pending public comments,
year-to-date information on bycatch performance and updated information
on anticipated fishing patterns in 1994.
For purposes of monitoring the fishery halibut bycatch mortality
allowances specified in Table 6, the Regional Director will use
observed halibut bycatch rates and reported and observed groundfish
catch to project when a fishery's halibut bycatch mortality allowance
is reached. The Regional Director monitors the fishery bycatch
mortality allowances using assumed mortality rates that are based on
the best information available.
Table 6.--Proposed Seasonal Apportionments of the 1995 Pacific Halibut
Bycatch Allowances for the BSAI Trawl and Nontrawl Fisheries
------------------------------------------------------------------------
Seasonal bycatch
Fishery allowances (mt
halibut)
------------------------------------------------------------------------
Trawl Gear
Yellowfin sole:
Jan. 20-July 31..................................... 230
Aug. 1-Dec. 31...................................... 362
Total............................................. 592
Rock sole/``other flatfish'':\1\
Jan. 20-Mar. 31..................................... 428
Apr. 1-June 30...................................... 180
July 1-Dec. 31...................................... 80
Total............................................. 688
Turbot/arrowtooth flounder/
sablefish:
Total............................................. 137
Rockfish:
Jan. 20-Mar. 31..................................... 40
Apr. 1-June 30...................................... 120
July 1-Dec. 31...................................... 41
Total............................................. 201
Pacific cod:
Jan. 20-Dec. 31..................................... 1,200
Total............................................. 1,200
Pollock/Atka mackerel/
``other species'':
Jan. 20-Apr. 15..................................... 430
Apr. 16-Dec. 31..................................... 527
Total............................................. 957
Total Trawl Halibut Mortality.....................
3,775
Nontrawl Gear
Pacific cod:
Jan. 1-Apr. 30...................................... 685
May. 1-Aug. 31...................................... 40
Sep. 1-Dec. 31...................................... Remainder
Total............................................. 725
Other nontrawl........................................ 175
Groundfish pot........................................ Exempt
Total Nontrawl Halibut Mortality.................. 900
------------------------------------------------------------------------
\1\Rock sole and other flatfish category. A technical amendment to add
flathead sole to this fishery category will be prepared by NMFS if the
Council makes a final recommendation at its December 1994 meeting to
break out flathead sole from the ``other flatfish'' species group (see
Table 1).
Assumed halibut mortality rates recommended by the International
Pacific Halibut Commission (IPHC) for the 1995 BSAI groundfish
fisheries are listed in Table 7. These mortality rates are based on an
average of mortality rates determined from NMFS observer data collected
during 1992 and 1993, except for the BSAI trawl arrowtooth flounder and
Greenland turbot fisheries, which are based on data from 1990 and 1991
because 1992-93 rates were not available. The Council proposed that
revised halibut discard mortality rates recommended by the IPHC be
adopted for purposes of monitoring halibut bycatch mortality limits
established for the 1995 groundfish fisheries.
The IPHC determined that the careful release measures implemented
for vessels using hook-and-line gear did not show appreciable
improvements in mortality rates and has recommended one rate for both
observed and unobserved vessels in the hook-and-line fisheries. This
action was approved by the Council.
For most fisheries, the 1992-93 averages, on which the 1995
recommendations are based, are somewhat higher than the actual rates
used in 1994. This occurs because the rates used in 1994 were unchanged
from the 1993 rates, which had been derived from data for 1990 and
1991. After the December 1994 Council meeting, NMFS will consider all
available data and will publish preseason assumed halibut mortality
rates in the Federal Register announcing the final 1995 initial
specifications of groundfish TACs.
Table 7.--Assumed Pacific Halibut Mortality Rates Proposed for the BSAI
Fisheries During 1995
------------------------------------------------------------------------
Assumed
mortality
(percent)
------------------------------------------------------------------------
Hook-and-line gear fisheries:
BSAI Pacific cod........................................... 18
BSAI sablefish............................................. 17
BSAI rockfish.............................................. 24
BSAI Greenland turbot...................................... 19
Trawl gear fisheries:
Midwater pollock........................................... 89
Rock sole/other flatfish\1\................................ 75
Bottom pollock............................................. 77
Atka mackerel.............................................. 59
Other species.............................................. 60
Rockfish................................................... 69
Greenland turbot........................................... 48
Sablefish.................................................. 49
Yellowfin sole............................................. 76
Pot gear fisheries: Pacific cod.............................. 8
------------------------------------------------------------------------
\1\Rock sole and other flatfish fishery category. A technical amendment
to add flathead sole to this fishery category will be prepared by NMFS
if the Council makes a final recommendation at its December 1994
meeting to break out flathead sole from the ``other flatfish'' species
group (see Table 1).
Groundfish PSC Limits
Section 675.20(a)(6) authorizes NMFS to specify PSC limits for
groundfish species or species groups for which the TAC will be
completely harvested by domestic fisheries. These PSC limits apply only
to JVP or TALFF fisheries. At this time, no groundfish are allocated to
either JVP or TALFF and specifications of groundfish PSC limits are
unnecessary.
Closures to Directed Fishing
If the Regional Director establishes a directed fishing allowance,
and that allowance is or will be reached before the end of the fishing
year, or, with respect to pollock, before the end of the fishing
season, NMFS will prohibit directed fishing for that species or species
group in the specified subarea or district under Sec. 675.20(a)(8). The
Regional Director has determined that interim TAC amounts of groundfish
will be necessary as incidental catch to support other anticipated
groundfish fisheries prior to the time that final specifications of
groundfish are in effect for the 1995 fishing year, and will publish
closures to directed fishing as part of the interim 1995 ITAC
specifications in the final rule section of the Federal Register.
Classification
This action is authorized under 50 CFR 611.93(b), 675.20, and 676;
and is exempt from review under E.O. 12866.
A draft environmental assessment (EA) on the allowable harvest
levels set forth in the final 1994 SAFE Report will be available for
public review at the December 7-11, 1994, Council meeting. After the
December meeting, a final EA will be prepared on the final 1995 TAC
amounts recommended by the Council.
Consultation pursuant to section 7 of the Endangered Species Act
has been initiated for the 1995 BSAI initial specifications.
Authority: 16 U.S.C. 1801 et seq.
Dated: December 9, 1994.
Charles Karnella,
Acting Program Management Officer, National Marine Fisheries Service.
[FR Doc. 94-30727 Filed 12-9-94; 4:22 pm]
BILLING CODE 3510-22-P
