[Federal Register Volume 64, Number 249 (Wednesday, December 29, 1999)]
[Proposed Rules]
[Pages 73003-73005]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-33853]
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DEPARTMENT OF COMMERCE
National Oceanic and Atmospheric Administration
50 CFR Part 679
[Docket No. 991221345-9345-01; I.D. 113099B]
RIN 0648-AL30
Fisheries of the Exclusive Economic Zone off Alaska; Prohibition
of Nonpelagic Trawl Gear in the Bering Sea and Aleutian Islands Pollock
Fishery
AGENCY: National Marine Fisheries Service (NMFS), National Oceanic and
Atmospheric Administration (NOAA), Commerce.
ACTION: Proposed rule; request for comments.
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SUMMARY: NMFS proposes regulations to implement Amendment 57 to the
Fishery Management Plan for the Groundfish Fishery of the Bering Sea
and Aleutian Islands Area (FMP). This action would consist of three
regulatory changes. First, it would prohibit the use of nonpelagic
trawl gear in the directed pollock fisheries of the Bering Sea and
Aleutian Islands (BSAI). Second, the action would revise the existing
performance standard for pelagic trawl gear. Third, crab and halibut
bycatch limits established for the BSAI groundfish trawl fisheries
would be reduced. This action is necessary to address bycatch reduction
objectives in the Magnuson-Stevens Fishery Conservation and Management
Act (Magnuson-Stevens Act) and is intended to further the goals and
objectives of the FMP.
DATES: Comments on the proposed rule must be received at the following
address by February 14, 2000.
ADDRESSES: Comments may be mailed to Sue Salveson, Assistant Regional
Administrator, Sustainable Fisheries Division, Alaska Region, NMFS,
P.O. Box 21668, Juneau, AK 99802-1668, Attn: Lori Gravel or faxed to
(907) 586-7465. Hand delivery or courier delivery of comments may be
sent to the Federal Building, 709 West 9th St., Room 453, Juneau, AK
99801. Copies of Amendment 57 to the FMP and of the Environmental
Assessment/Regulatory Impact Review/Initial Regulatory Flexibility
Analysis (EA/RIR/IRFA) prepared for this action are available from NMFS
at the above address or by calling the Alaska Region, NMFS, at
(907)586-7228. Comments will not be accepted if submitted via e-mail or
Internet.
FOR FURTHER INFORMATION CONTACT: Nina Mollett, (907)586-7228.
SUPPLEMENTARY INFORMATION:
NMFS manages the domestic groundfish fisheries of the BSAI under
the FMP. The North Pacific Fishery Mangement Council (Council) prepared
the FMP under the Magnuson-Stevens Act. Regulations governing the
groundfish fisheries of the BSAI appear at 50 CFR parts 600 and 679.
The Council has submitted Amendment 57 for Secretarial review. A
Notice of Availability (NOA) of the FMP amendment was published on
December 10, 1999 with comments on the FMP amendment invited through
February 7, 2000. Written comments may address the FMP amendment, the
proposed rule, or both, but must be received by February 7, 2000 to be
considered in the decision to approve or disapprove the FMP amendment.
Background and Need for Action
This action is designed to comply with the Magnuson-Stevens Act,
which emphasizes the importance of reducing bycatch to maintain
sustainable fisheries. National Standard 9 of the Magnuson-Stevens Act
mandates that conservation and management measures minimize bycatch, to
the extent practicable, and minimize mortality where bycatch cannot be
avoided.
More specific authority for the proposed rule is provided by
paragraph 303(b)(2) of the Magnuson-Stevens Act. It states: ``Any
fishery management plan which is prepared by any Council, or by the
Secretary, with respect to any fishery, may * * * designate zones
where, and periods when, fishing * * * shall be permitted only * * *
with specified types and quantities of fishing gear.''
The objective of Amendment 57, as adopted by the Council at its
June 1998 meeting, is to reduce bycatch in the BSAI pollock fishery.
The proposed action to implement the amendment has three parts.
1. Prohibition on Nonpelagic Trawl Gear in the BSAI Directed Pollock
Fishery
Under existing regulations (Sec. 679.20(a)(5)(i)(B)), the
Administrator of the Alaska Region, NMFS, in consultation with the
Council, has authority to limit the amount of the total allowable catch
(TAC) that may be taken in the directed fishery for pollock using
nonpelagic trawl gear. The Administrator accomplishes this by
allocating TAC for pollock between pelagic and nonpelagic trawl gear
types during the annual specification process. In practice, the Council
has recommended allocating TAC between gear types only twice. In 1990,
the Bering Sea pollock TAC was split 88 percent for pelagic gear and 12
percent for nonpelagic trawl gear during the annual specification
process. No limit was placed on nonpelagic trawl gear during subsequent
years until the 1999 season, when the entire pollock TAC was allocated
to pelagic gear and none to nonpelagic gear. This step was taken in
anticipation of Amendment 57 being approved.
Currently, NMFS has authority to prohibit nonpelagic trawling for
pollock in the BSAI under Sec. 679.21(e)(7)(i). When a prohibited
species catch (PSC) allowance, or a seasonal apportionment of the
allowance, is reached in the pollock/Atka mackerel/''other species''
category, NMFS prohibits nonpelagic trawling for pollock either
throughout the BSAI, or, depending on the PSC species, in the affected
zone of the BSAI, for the remainder of the year.
The Council's rationale for permanently prohibiting nonpelagic
trawling for pollock in the BSAI, instead of relying on existing
measures, is that the prohibition is expected to result in needed
bycatch savings while imposing a relatively low cost on the fishery.
Pollock is the only fishery where both types of trawl gear are used,
and already most fishing for pollock is conducted with pelagic trawl
gear, which has a substantially lower bycatch rate of halibut and crab.
Although operators who use both types of gear would lose some
flexibility under this rule, participants in the pollock fishery would
nevertheless be able to catch the TAC.
2. Performance Standard
Existing regulations, establish a performance standard to
discourage operators from fishing on the seabed with pelagic gear at
times when nonpelagic trawl gear is prohibited in the BSAI. The
regulations prohibit a vessel engaged in directed fishing for pollock
from having 20 or more crabs of any species, with a carapace width of
more than 1.5 inches (38 mm) at the widest dimension, on board at any
one time. Crabs were chosen for the standard because they inhabit the
seabed and, if caught with trawl gear, provide proof that a trawl has
been in contact with the bottom. The proposed rule would clarify that
the standard
[[Page 73004]]
would be in effect at all times for vessels in the BSAI directed
fishery for pollock, because the use of nonpelagic trawl gear would be
prohibited permanently.
3. PSC Limits
The proposed rule would reduce the bycatch limit for halibut and
crab caught using trawl gear in the BSAI. The CDQ program would
continue to receive 7.5 percent of each PSC limit, in accordance with
Sec. 679.21(e)(1), which contains the existing limits for each PSC
species in the BSAI. The current halibut PSC allowance is 3,775 mt.
Crab bycatch limits vary according to abundance and spawning biomass as
determined by annual surveys.
Under the proposed rule, halibut bycatch mortality would be reduced
by 100 mt. The PSC allowance for red king crabs would be reduced by
3,000 animals, for C. bairdi crabs by 50,000 animals, and for C. opilio
crabs by 150,000 animals. For C. bairdi crabs, the limit would be
lowered by 20,000 in Zone 1 and by 30,000 in Zone 2, reflecting the
larger fishery there.
The Council recommended these reduced PSC limits after considering
data on bycatch rates from vessels using pelagic gear while the
performance standard was in effect. Two other options were considered:
Option 1 would have reduced only the halibut bycatch limit, and Option
2 would have reduced bycatch by lesser amounts for all four PSC
species. The Council chose the proposed approach because it represents
a more realistic estimate of how much bycatch would be saved by
prohibiting nonpelagic trawl gear. The analysis of all options and
alternatives is contained in the EA/RIR/IRFA (see ADDRESSES).
Pollock CDQ Fisheries
Under this rule, vessels fishing for CDQ pollock would be exempt
from the nonpelagic trawl gear prohibition. This exemption is based on
two reasons. First, the structure of the CDQ program provides a strong
incentive to the CDQ groups and their harvesting partners to use
fishing gear and fishing techniques that minimize the bycatch of non-
target groundfish and prohibited species. Each CDQ group receives an
allocation of all the groundfish TAC species. Each CDQ group is
prohibited from exceeding these allocations. In accounting for the CDQ
and prohibited species quota (PSQ) allocations, NMFS considers the
catch by all vessels fishing for the CDQ group. Each CDQ group is each
responsible for managing the catch of its CDQ and PSQ allocations so as
to maximize the overall value of the CDQ fisheries. For example, if a
CDQ group reaches its halibut PSQ allocation, its members must stop all
CDQ fishing for the group's remaining CDQ allocations, and thus forego
the value of any unharvested goundfish. This management structure
provides a substantial incentive to use pelagic gear away from the
bottom in the pollock CDQ fisheries. In 1998, for example, 98 percent
of the total pollock CDQ was harvested using pelagic trawl gear.
The incentive to use gear that will minimize PSC while fishing for
pollock would be strengthened further by the proposed rule. The CDQ
program, which currently receives a 7.5 percent allocation of each PSC
species, would receive a reduced allocation of PSC under the rule,
because it would continue to receive a 7.5 percent allocation of what
would be a reduced overall PSC allowance. Therefore, although the
prohibition on nonpelagic trawl gear in itself would not apply to the
CDQ fisheries, the collateral reduction in PSC allowance would increase
the effect of the existing incentive for CDQ groups to minimize the
bycatch of PSQ species.
Second, NMFS currently does not have a definition for directed
fishing for CDQ pollock. Without such a definition, a prohibition
against using nonpelagic trawl gear while directed fishing for pollock
would not be enforceable in the CDQ fisheries. NMFS is developing a
definition for directed fishing for pollock in the CDQ fisheries under
regulations implementing Amendment 66 to the BSAI groundfish FMP. In
light of that definition, NMFS may consider extending the prohibition
on the use of nonpelagic trawl gear in directed fisheries for BSAI
pollock to the CDQ program. Such an extension would be subject to the
normal process for public review and comment.
Fishing Trip Definition
The proposed rule would change the ``fishing trip'' definition
contained in Sec. 679.2. Under the new definition, when a vessel begins
fishing with a new gear type, it would be required to start
recordkeeping for a new fishing trip. This change would enable, for
example, a vessel legitimately fishing with nonpelagic trawl gear for
yellowfin sole, and therefore under a maximum retainable bycatch
restriction for pollock (see Sec. 679.20(e)), to keep clear records if
it switches to directed fishing for pollock using pelagic gear.
Classification
At this time, NMFS has not determined that the amendment this rule
would implement is consistent with the national standards of the
Magnuson-Stevens Act and other applicable laws. NMFS, in making that
determination, will take into account the data, views, and comments
received during the comment period.
This proposed rule has been determined to be not significant for
purposes of E.O. 12866.
The Council and NMFS prepared an Initial Regulatory Flexibility
Analysis that describes the impact this proposed rule, if adopted,
would have on small entities. Analysis of catch data from 1996 and 1997
indicates that very few vessels will be adversely affected by the
Council's preferred alternative to the extent of having to buy or use
new gear because most vessels fishing for pollock do so mostly using
pelagic gear. In 1996, five small catcher vessels used nonpelagic trawl
gear only. This number was recuced to two vessels in 1997. Total
pollock harvests by the few catcher vessels using only nonpelagic trawl
gear averaged 85 mt per year during 1996-1997, for an ex-vessel value
of $17,000, or about $5,000 per vessel per year. This amount is likely
to be a very small portion (<5 percent)="" of="" the="" annual="" gross="" revenues="" for="" the="" vessels="" in="" question.="" the="" few="" catcher="" vessels="" that="" use="" only="" nonpelagic="" trawl="" gear="" in="" the="" bsai="" pollock="" fishery="" tend="" to="" concentrate="" on="" other="" fisheries="" such="" as="" pacific="" cod="" and="" flatfish.="" for="" these="" small="" vessels,="" pollock="" represents="" a="" fishery="" of="" opportunity="" that="" is="" sometimes="" targeted="" when="" other="" fisheries="" are="" closed,="" but="" it="" is="" not="" their="" primary="" source="" of="" income.="" in="" addition,="" none="" of="" these="" vessels="" are="" believed="" to="" qualify="" as="" future="" participants="" in="" the="" bsai="" pollock="" fishery="" under="" the="" american="" fisheries="" act="" (afa),="" which="" limits="" participation="" in="" the="" bsai="" pollock="" fishery="" to="" those="" vessels="" named="" in="" the="" afa="" or="" meeting="" certain="" qualifying="" criteria.="" under="" the="" afa,="" the="" small="" vessels="" in="" question,="" with="" a="" few="" possible="" exceptions,="" are="" excluded="" from="" bsai="" pollock="" fishery="" by="" statute="" and="" will="" be="" unaffected="" by="" the="" prohibition="" on="" the="" use="" of="" nonpelagic="" trawl="" gear.="" of="" the="" approximately="" 120="" catcher="" vessels="" that="" are="" expected="" to="" remain="" in="" the="" bsai="" pollock="" fishery="" under="" the="" afa,="" approximately="" 60="" are="" small="" entities,="" and="" these="" vessels="" fish="" for="" pollock="" predominantly="" with="" pelagic="" trawl="" gear.="" some="" catcher="" processors="" that="" target="" on="" larger="" pollock="" for="" fillet="" processing="" use="" nonpelagic="" trawl="" gear="" for="" pollock="" under="" certain="" circumstances,="" and="" these="" vessels="" may="" face="" impacts="" if="" nonpelagic="" trawl="" gear="" is="" prohibited.="" however,="" none="" of="" the="" catcher="" processors="" in="" the="" pollock="" fishery="" is="" a="" small="" entity="" under="" the="" rfa.="" the="" crab="" performance="" standard="" may="" pose="" some="" unquantifiable="" inconvenience="" to="" vessels="" with="" pelagic="" gear,="" as="" they="" will="" be="" forced="" to="" fish="" only="" [[page="" 73005]]="" in="" midwater.="" to="" the="" extent="" that="" they="" have="" chosen="" to="" do="" otherwise="" in="" the="" past,="" economic="" theory="" suggests="" that="" they="" have="" probably="" been="" gaining="" some="" economic="" advantage.="" the="" reductions="" in="" overall="" psc="" limits="" for="" halibut,="" red="" king="" crab,="" tanner="" crab,="" and="" snow="" crab="" are="" not="" likely="" to="" cause="" significant="" impacts="" to="" small="" entities,="" as="" the="" proposed="" reductions="" are="" expected="" to="" mirror="" reductions="" in="" bycatch="" resulting="" from="" the="" prohibition="" on="" nonpelagic="" trawl="" gear.="" the="" council="" and="" nmfs="" considered="" alternative="" approached="" for="" meeting="" the="" magnuson-stevens="" act's="" requirement="" to="" minimize="" bycatch="" that="" would="" minimize="" the="" effect="" on="" small="" entities.="" while="" eliminating="" nonpelagic="" trawling="" in="" all="" fisheries="" in="" the="" bsai,="" or="" eliminating="" nonpelagic="" trawling="" in="" pollock="" fisheries="" in="" the="" gulf="" of="" alaska="" would="" reduce="" bycatch="" more="" dramatically="" than="" the="" proposed="" approach,="" such="" measures="" would="" be="" expected="" to="" have="" far="" more="" significant="" effects="" on="" many="" more="" small="" entities.="" the="" no="" action="" alternative="" (alternative="" 1="" in="" the="" ea),="" could="" result="" in="" fewer="" economic="" effects="" on="" small="" entities="" depending="" on="" the="" council's="" future="" recommended="" allocations="" of="" pollock="" quota.="" however,="" it="" is="" not="" clear="" that="" the="" status="" quo="" would="" comply="" with="" the="" requirements="" of="" the="" magnuson-stevens="" act.="" nmfs="" also="" considered="" a="" regulatory="" amendment="" to="" split="" the="" pollock/="" atka="" mackerel/other="" species="" category="" for="" purposes="" of="" allocating="" the="" psc="" limits="" among="" fisheries,="" but="" rejected="" that="" approach="" because="" of="" the="" potential="" for="" major="" economic="" consequences.="" while="" eliminating="" nonpelagic="" trawling="" in="" all="" fisheries="" in="" the="" bsai,="" or="" eliminating="" nonpelagic="" trawling="" in="" pollock="" fisheries="" in="" the="" gulf="" of="" alaska="" would="" reduce="" bycatch="" more="" dramatically="" than="" the="" proposed="" approach,="" such="" measures="" would="" be="" expected="" to="" have="" far="" more="" significant="" effects="" on="" many="" more="" small="" entities.="" list="" of="" subjects="" in="" 50="" cfr="" part="" 679="" alaska,="" fisheries,="" recordkeeping="" and="" reporting="" requirements.="" dated:="" december="" 22,="" 1999.="" andrew="" a.="" rosenberg,="" deputy="" assistant="" administrator="" for="" fisheries,="" national="" marine="" fisheries="" service.="" for="" the="" reasons="" discussed="" in="" the="" preamble,="" 50="" cfr="" part="" 679="" is="" proposed="" to="" be="" amended="" as="" follows:="" part="" 679--fisheries="" of="" the="" exclusive="" economic="" zone="" off="" alaska="" 1.="" the="" authority="" citation="" for="" 50="" cfr="" part="" 679="" continues="" to="" read="" as="" follows:="" authority:="" 16="" u.s.c.="" 773="" et="" seq.,="" 1801="" et="" seq.,="" and="" 3631="" et="" seq.="" 2.="" in="" sec.="" 679.2,="" the="" definition="" of="" ``fishing="" trip'',="" is="" amended="" by="" redesignating="" paragraph="" (1)(iv)="" as="" paragraph="" (1)(v),="" removing="" the="" coordinating="" conjunction,="" ``or,''="" at="" the="" end="" of="" paragraph="" (1)(iii),="" and="" adding="" paragraph="" (1)(iv)="" to="" read="" as="" follows:="" sec.="" 679.2="" definitions.="" *="" *="" *="" *="" *="" fishing="" trip="" means:="" (1)="" *="" *="" *="" (iv)="" the="" vessel="" begins="" fishing="" with="" different="" type="" of="" authorized="" fishing="" gear;="" or="" *="" *="" *="" *="" *="" 2.="" in="" sec.="" 679.7,="" paragraph="" (a)(14)="" is="" revised="" to="" read="" as="" follows:="" sec.="" 679.7="" prohibitions.="" *="" *="" *="" *="" *="" (a)="" *="" *="" *="" (14)="" trawl="" gear="" performance="" standard.="" use="" a="" vessel="" to="" participate="" in="" a="" directed="" fishery="" for="" pollock="" in="" the="" bsai="" using="" trawl="" gear="" and="" have="" on="" board="" the="" vessel,="" at="" any="" particular="" time,="" 20="" or="" more="" crabs="" of="" any="" species="" that="" have="" a="" carapace="" width="" of="" more="" than="" 1.5="" inches="" (38="" mm)="" at="" the="" widest="" dimension.="" *="" *="" *="" *="" *="" sec.="" 679.20="" [amended]="" 3.="" in="" sec.="" 679.20,="" paragraph="" (a)(5)(i)(b)="" is="" removed="" and="" paragraph="" (a)(5)(i)(c)="" is="" redesignated="" as="" (a)(5)(i)(b).="" 4.="" in="" sec.="" 679.21,="" paragraphs="" (e)(1)(ii)(a)="" through="" (c),="" (e)(1)(iii)(a)="" and="" (b),="" (e)(1)(iv)(a)="" through="" (c),="" and="" (e)(1)(v)="" are="" revised="" to="" read="" as="" follows:="" sec.="" 679.21="" prohibited="" species="" bycatch="" management.="" *="" *="" *="" *="" *="" (e)="" *="" *="" *="" (1)="" *="" *="" *="" (ii)="" *="" *="" *="" (a)="" when="" the="" number="" of="" mature="" female="" red="" king="" crabs="" is="" at="" or="" below="" the="" threshold="" of="" 8.4="" million="" mature="" crabs="" or="" the="" effective="" spawning="" biomass="" is="" less="" than="" or="" equal="" to="" 14.5="" million="" lb="" (6,577="" mt),="" the="" zone="" 1="" psc="" limit="" will="" be="" 32,000="" red="" king="" crabs.="" (b)="" when="" the="" number="" of="" mature="" female="" red="" king="" crabs="" is="" above="" the="" threshold="" of="" 8.4="" million="" mature="" crabs="" and="" the="" effective="" spawning="" biomass="" is="" greater="" than="" 14.5="" million="" lb="" but="" less="" than="" 55="" million="" lb="" (24,948="" mt),="" the="" zone="" 1="" psc="" limit="" will="" be="" 97,000="" red="" king="" crabs.="" (c)="" when="" the="" number="" of="" mature="" female="" red="" king="" crabs="" is="" above="" the="" threshold="" of="" 8.4="" million="" mature="" crabs="" and="" the="" effective="" spawning="" biomass="" is="" equal="" to="" or="" greater="" than="" 55="" million="" lb,="" the="" zone="" 1="" psc="" limit="" will="" be="" 197,000="" red="" king="" crabs.="" (iii)="" *="" *="" *="" (a)="" zone="" 1.="" when="" the="" total="" abundance="" of="" c.="" bairdi="" crabs="" is:="" (1)="" 150="" million="" animals="" or="" less,="" the="" psc="" limit="" will="" be="" 0.5="" percent="" of="" the="" total="" abundance,="" minus="" 20,000="" animals.="" (2)="" over="" 150="" million="" to="" 270="" million="" animals,="" the="" psc="" limit="" will="" be="" 730,000="" animals.="" (3)="" over="" 270="" million="" to="" 400="" million="" animals,="" the="" psc="" limit="" will="" be="" 830,000="" animals.="" (4)="" over="" 400="" million="" animals,="" the="" psc="" limit="" will="" be="" 980,000="" animals.="" (b)="" zone="" 2.="" when="" the="" total="" abundance="" of="" c.="" bairdi="" crabs="" is:="" (1)="" 175="" million="" animals="" or="" less,="" the="" psc="" limit="" will="" be="" 1.2="" percent="" of="" the="" total="" abundance,="" minus="" 30,000="" animals.="" (2)="" over="" 175="" million="" to="" 290="" million="" animals,="" the="" psc="" limit="" will="" be="" 2,070,000="" animals.="" (3)="" over="" 290="" million="" to="" 400="" million="" animals,="" the="" psc="" limit="" will="" be="" 2,520,000="" animals.="" (4)="" over="" 400="" million="" animals,="" the="" psc="" limit="" will="" be="" 2,970,000="" animals.="" (iv)="" *="" *="" *="" (a)="" psc="" limit.="" the="" psc="" limit="" will="" be="" 0.1133="" percent="" of="" the="" total="" abundance,="" minus="" 150,000="" c.="" opilio="" crabs,="" unless;="" (b)="" minimum="" psc="" limit.="" if="" 0.1133="" percent="" multiplied="" by="" the="" total="" abundance="" is="" less="" than="" 4.5="" million,="" then="" the="" minimum="" psc="" limit="" will="" be="" 4.350="" million="" animals;="" or="" (c)="" maximum="" psc="" limit.="" if="" 0.1133="" percent="" multiplied="" by="" the="" total="" abundance="" is="" greater="" than="" 13="" million,="" then="" the="" maximum="" psc="" limit="" will="" be="" 12.850="" million="" animals.="" (v)="" halibut.="" the="" psc="" limit="" of="" halibut="" caught="" while="" conducting="" any="" trawl="" fishery="" for="" groundfish="" in="" the="" bsai="" during="" any="" fishing="" year="" is="" an="" amount="" of="" halibut="" equivalent="" to="" 3,675="" mt="" of="" halibut="" mortality.="" *="" *="" *="" *="" *="" 5.="" in="" sec.="" 679.24,="" paragraph="" (b)(4)="" is="" added="" to="" read="" as="" follows:="" sec.="" 679.24="" gear="" limitations.="" *="" *="" *="" *="" *="" (b)="" *="" *="" *="" (4)="" bsai="" pollock="" nonpelagic="" trawl="" prohibition.="" no="" person="" may="" use="" nonpelagic="" trawl="" gear="" to="" engage="" in="" directed="" fishing="" for="" non-cdq="" pollock="" in="" the="" bsai.="" *="" *="" *="" *="" *="" [fr="" doc.="" 99-33853="" filed="" 12-28-99;="" 8:45="" am]="" billing="" code="" 3510-22-f="">