98-3791. Fisheries of the Northeastern United States; Northeast Multispecies Fishery; Framework Adjustment 18  

  • [Federal Register Volume 63, Number 31 (Tuesday, February 17, 1998)]
    [Rules and Regulations]
    [Pages 7727-7731]
    From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
    [FR Doc No: 98-3791]
    
    
    =======================================================================
    -----------------------------------------------------------------------
    
    DEPARTMENT OF COMMERCE
    
    National Oceanic and Atmospheric Administration
    
    50 CFR Part 648
    
    [Docket No. 970829217-8025-02; I.D. 081597E]
    RIN 0648-AJ79
    
    
    Fisheries of the Northeastern United States; Northeast 
    Multispecies Fishery; Framework Adjustment 18
    
    AGENCY: National Marine Fisheries Service (NMFS), National Oceanic and 
    Atmospheric Administration (NOAA), Commerce.
    
    ACTION: Final rule.
    
    -----------------------------------------------------------------------
    
    SUMMARY: NMFS issues this final rule to implement measures contained in 
    Framework Adjustment 18 to the Northeast Multispecies Fishery 
    Management Plan (FMP). Framework Adjustment 18 allows pelagic midwater 
    trawling for herring and mackerel in Multispecies Closed Areas I and 
    II, the Gulf of Maine (GOM) multispecies closure areas, and in the 
    Nantucket Lightship Closed Area, under certain conditions. The intent 
    of this rule is to provide greater economic opportunity for pelagic 
    midwater trawl vessels to harvest herring and mackerel while 
    maintaining the conservation benefits of the current multispecies 
    management measures.
    
    DATES: Effective February 17, 1998.
    
    ADDRESSES: Copies of Amendment 7 to the FMP, its regulatory impact 
    review (RIR), and the final regulatory flexibility analysis (FRFA) 
    contained within the RIR, its final supplemental environmental impact 
    statement, and Framework Adjustment 18 documents are available upon 
    request from Paul J. Howard, Executive Director, New England Fishery 
    Management Council, 5 Broadway, Saugus, MA 01906-1097.
    
    FOR FURTHER INFORMATION CONTACT: Richard A. Pearson, NMFS, Fishery 
    Policy Analyst, 508-281-9279.
    
    SUPPLEMENTARY INFORMATION:
    
    Background
    
        In 1994, at the request of the New England Fishery Management 
    Council (Council), NMFS, by emergency action, closed three large areas 
    of the Northeast multispecies fishery for the duration of the emergency 
    to all fishing gear capable of catching multispecies (59 FR 63926, 
    December 12, 1994, and amended at 60 FR 3102, January 13, 1995). These 
    areas, known as Closed Areas I and II and the Nantucket Lightship 
    Closed Area, cover approximately 4,800 square miles
    
    [[Page 7728]]
    
    (12432 sq. km.). In order to avoid a hiatus between the emergency 
    action and the implementation of Amendment 7, the Council proposed and 
    NMFS issued Framework Adjustment 9 (60 FR 19364, April 18, 1995) to 
    implement the emergency measures on a permanent basis while Amendment 7 
    was being developed to address a long term objective of stock 
    rebuilding. In 1996, Amendment 7 to the FMP continued the existing 
    year-round closures and closed seasonally three additional large areas 
    in the GOM (61 FR 27710, May 31, 1996). These areas currently remain 
    closed to all gear capable of catching multispecies, including pelagic 
    midwater trawls.
        Recently, the Council was requested by industry participants to 
    allow pelagic midwater trawling for herring and mackerel in the 
    multispecies closed areas because these fisheries capture negligible 
    amounts of regulated multispecies due to the spatial separation of 
    pelagic and demersal species in the water column. Because of the low 
    value of herring and mackerel, it is important to the industry that 
    vessels have unimpeded access to these species throughout their 
    migrations to ensure that the harvesting and/or processing capacity of 
    the vessels is maximized. Large closed areas impede access and make 
    fishing for herring and mackerel economically less feasible. These 
    pelagic species are very important for commercial fishing vessels in 
    New England that participate in joint ventures or in the directed 
    domestic fishery. Due to the prohibition on fishing in closed areas and 
    an increased reliance on closed areas for multispecies mortality 
    reduction, it has become increasingly difficult to conduct these 
    pelagic fishing operations.
        Further details concerning justification for, and development of, 
    Framework Adjustment 18 were provided in the preamble to the proposed 
    rule (62 FR 49193, September 19, 1997).
        This framework allows pelagic midwater trawling for herring and 
    mackerel in Closed Areas I and II, the Nantucket Lightship Closed Area, 
    and in the GOM Closed Areas (Sec. 648.81(a), (b), and (c)) under the 
    following conditions: (1) Vessels must obtain and comply with a 
    midwater trawl letter of authorization (LOA)(as currently required 
    under Sec. 648.80(d)(2) for the midwater trawl gear exemption) from the 
    Administrator, Northeast Region, NMFS (Regional Administrator); (2) 
    harvesting or processing vessels must carry observers, if required by 
    NMFS (as currently required under the midwater trawl gear exemption), 
    and (3) if the Regional Administrator determines, on the basis of sea 
    sampling data or other credible information for this fishery, that the 
    bycatch of regulated multispecies for the fishery or for any individual 
    vessel exceeds, or is likely to exceed, 1 percent of herring and 
    mackerel harvested, by weight, the Regional Administrator may place 
    restrictions and/or conditions in the LOAs for any or all individual 
    fishing operations, or, after consulting with the Council, the Regional 
    Administrator may suspend or prohibit any or all midwater trawl 
    activities in the closed areas.
    
    Comments and Responses
    
        Five comments were received concerning Framework Adjustment 18. 
    Three of the comments were strongly supportive of the proposed rule and 
    substantiate the finding in the Initial Regulatory Flexibility Act 
    (IRFA) that this action will have a positive economic impact on small 
    business entities. Two other comments were concerned about the 
    potential bycatch of regulated multispecies and marine mammals.
        Comment 1: A representative from a pelagic fishing company wrote in 
    support of Framework Adjustment 18. The commenter stated that pelagic 
    midwater trawl vessels have no bycatch of groundfish or marine mammals 
    and disputed assertions to the contrary. To satisfy any perceived 
    problems, the commenter stated that the pelagic trawl industry is 
    willing to take observers, if requested to do so.
        Response: Available herring and mackerel sea sampling data shows a 
    minimal bycatch of regulated multispecies. NMFS will continue to 
    collect sea sampling data and other information on these fisheries. 
    This information will be essential for any future decision making 
    purposes. A condition in the LOA necessary to participate in the 
    pelagic midwater trawl fishery states that vessels must carry 
    observers, if required by NMFS. On the basis of sea sampling data or 
    other credible information for this fishery, if bycatch of regulated 
    multispecies exceeds, or is likely to exceed, 1 percent of the catch of 
    herring and mackerel, by weight, the Regional Administrator may place 
    restrictions or conditions on the required midwater trawl LOA or, in 
    consultation with the Council, suspend all midwater trawl activities in 
    any or all of the closed areas. These precautions should alleviate any 
    real or perceived problems with bycatch in the closed areas.
        Comment 2: A representative from a commercial pelagic fishing 
    association submitted written comments supporting Framework Adjustment 
    18. The commenter stated that allowing midwater trawl vessels into the 
    multispecies closed areas would facilitate the orderly development of 
    the offshore herring fishery. The commenter wrote that, as the herring 
    fishery management plan is developed, it will be essential to gather 
    accurate scientific data and information to respond to any concerns 
    regarding marine mammal interactions with pelagic trawl gear.
        Response: NMFS concurs. This final rule could facilitate the 
    orderly development of the industry and provide important additional 
    information on fishery bycatch and pelagic species biology.
        Comment 3: A representative from a commercial fishing association 
    submitted written comments supporting Framework Adjustment 18, 
    indicating that it will provide greater economic opportunity for 
    pelagic midwater trawl vessels to harvest herring and mackerel and 
    maintain the conservation benefits of current multispecies management 
    measures.
        Response: NMFS concurs. The intent of this framework is to allow 
    pelagic midwater trawling in the multispecies closed areas only if it 
    does not adversely impact current efforts to rebuild depleted 
    groundfish stocks. The RIR/IRFA concluded that this action will have a 
    positive economic impact on small businesses.
        Comment 4: A representative of the commercial fishing industry 
    submitted a written comment expressing concern about bycatch of 
    regulated multispecies (specifically cod, haddock, and pollock) in the 
    midwater trawl fishery, if these areas are reopened to pelagic midwater 
    trawl gear. The commenter wrote that groundfish occasionally leave the 
    sea bottom and may, therefore, be vulnerable to capture with midwater 
    trawl gear. The commenter emphasized that this is why 100-percent 
    observer coverage should be required in the midwater trawl fishery. The 
    commenter also questioned the validity of the data provided on the cost 
    of 100-percent observer coverage in relation to the economic value of 
    the pelagic fishery. The commenter stated that the cost of observers 
    would be minimal compared with the value of the herring and mackerel 
    caught in the areas and with the value of assured protection to 
    groundfish.
        Response: The Council and NMFS have been aware of the concern with 
    multispecies bycatch throughout the development of Framework Adjustment 
    18. An important factor in the decision to allow midwater trawling is 
    the fact
    
    [[Page 7729]]
    
    that available herring and mackerel sea sampling data and mackerel 
    weighout data do not show a bycatch of regulated multispecies. The data 
    do indicate some bycatch of nonregulated multispecies (whiting) and 
    scup. Monitoring of data will continue with the implementation of 
    Framework Adjustment 18, and appropriate action will be taken if the 
    bycatch of regulated multispecies exceeds 1 percent, by weight, of 
    harvested herring and mackerel. Since many of the vessels operating in 
    these fisheries will be reporting their landings under the mackerel and 
    multispecies fishery management plans, data will be available. 
    Safeguards have been included in the framework whereby the midwater 
    trawl fishery in the closed area(s) can be restricted or closed if the 
    bycatch of regulated multispecies for the fishery exceeds 1 percent, by 
    weight, of harvested herring and mackerel by any or all vessels. This 
    will ensure that bycatch of regulated multispecies is minimal. 
    Furthermore, vessels participating in these fisheries are not allowed 
    to retain regulated multispecies and, therefore, have no incentive to 
    capture them.
        The Council considered requiring 100-percent observer coverage or 
    having observers present whenever fish are transferred from a 
    harvesting vessel to the processor, but it rejected these alternatives 
    due to prohibitive costs and limited observer availability. Observer 
    costs were found in the IRFA prepared by the Council to range from 8 
    percent to as much as 148 percent of ex-vessel revenues. These costs 
    would average 55 percent of gross revenues for ton-class 3 vessels, and 
    14 percent of gross revenues for ton-class 4 vessels based on available 
    herring catch rate data. Therefore, for vessels that land pelagics 
    ashore and for some freezer trawlers, it would be economically 
    unfeasible to require observers. That is why the alternative to require 
    mandatory observers was rejected.
        Importantly, however, the framework does require vessels to obtain 
    and comply with the midwater trawl LOA, as described in 
    Sec. 648.80(d)(2), to fish in the closed areas. A condition in the LOA 
    states that vessels must carry observers, if required by NMFS. Also, 
    observers are currently required on processing vessels participating in 
    joint venture operations.
        Comment 5: A representative of the commercial fishing industry 
    submitted a written comment stating that this rule could result in 
    increased interactions between pelagic midwater trawl gear and marine 
    mammals, especially harbor porpoise. The frequency of interactions 
    could increase because the GOM closures coincide with periods of high 
    harbor porpoise abundance, and the target species for both harbor 
    porpoise and the midwater trawl fleet is herring. The commenter 
    indicated that minimal sea sampling data is available upon which to 
    base a final rule and expressed concern regarding compliance with the 
    Marine Mammal Protection Act and the Endangered Species Act. Finally, 
    it was stated that Framework Adjustment 18 should not compromise 
    efforts already underway to rebuild groundfish and marine mammal 
    stocks.
        Response: NMFS appreciates the commenter's detailed discussion of 
    the potential for bycatch of harbor porpoise and other marine mammals 
    in the midwater herring and mackerel trawl fisheries and the need for 
    observer coverage in these fisheries. The NMFS sea sampling program has 
    collected information on marine mammal bycatch in foreign and domestic 
    midwater trawl fisheries targeting mackerel in the Mid-Atlantic. Sample 
    sizes for herring and mackerel midwater trawl trips in the GOM are 
    small and provide limited information on marine mammal bycatch rates 
    for these fisheries. Based upon the available data on midwater trawl 
    fisheries, the 1996 marine mammal stock assessment report prepared by 
    NMFS indicated that no takes of harbor porpoise have been documented in 
    midwater trawl gear.
        NMFS has the authority to place observers in the herring midwater 
    trawl fishery for purposes of monitoring fish harvests as well as for 
    monitoring any marine mammal and other endangered species bycatch.
        An Endangered Species Act Section 7 consultation on this fishery 
    resulted in a Biological Opinion issued on December 13, 1996. Since the 
    conclusion of that consultation, Framework Adjustment 18 has been 
    revised. Therefore, consultation on Framework Adjustment 18 was 
    reinitiated. The new consultation concluded that impacts from fishing 
    activities conducted under Framework Adjustment 18 will not change the 
    basis for the December 13, 1996, determination that the overall 
    operation of the multispecies fishery under the FMP, without 
    modification, is likely to jeopardize the continued existence of the 
    northern right whale may affect but is not likely to jeopardize the 
    continued existence of other endangered or threatened species of whale, 
    sea turtles, and fish under NMFS jurisdiction and will not result in 
    adverse modification of critical habitat.  
    
    Changes in the Final Rule From the Proposed Rule
    
        Some changes from the proposed rule were necessary to make 
    Framework Adjustment 18 more succinct and to eliminate duplicative 
    regulations. Other changes were made to more accurately reflect Council 
    intent and to serve administrative purposes.
        Section 648.80(d)(2) of the final rule requires vessels to have on 
    board a midwater trawl LOA when fishing in the Gulf of Maine/Georges 
    Bank (GOM/GB) and Stellwagen Bank/Jeffreys Ledge (SB/JL) Areas and the 
    portion of the Nantucket Lightship Closed Area not within the GOM/GB 
    and the SB/JL Areas. The proposed rule, while not substantively 
    different, independently listed six other multispecies closed areas as 
    being subject to the LOA requirement. Because these closed areas are 
    subareas lying completely within the larger GOM/GB and SB/JL Areas, the 
    final rule does not independently list them.
        Section 648.80(d)(3) of the final rule allows vessels in the 
    midwater trawl exemption in areas north of 42 deg.20' N. lat. and in 
    three specified multispecies closed areas to fish for, possess, or land 
    only Atlantic herring, blueback herring, or mackerel. The proposed rule 
    listed all seven of the multispecies closed areas. Because four of 
    these multispecies closed areas are north of 42 deg.20' N. lat., the 
    final rule does not independently list them.
        In Sec. 648.80(d), paragraph 5 is added which requires vessels 
    fishing under the midwater trawl exemption to carry a NMFS- approved 
    sea sampler/observer, if requested by the Regional Administrator. This 
    provision is already in the midwater trawl LOA and is specifically 
    mentioned in the Council framework document. Adding this provision 
    makes the regulations consistent with the LOA and better reflects 
    Council intent.
        In Sec. 648.81(a)(2)(iii), the final rule specifies that the 
    Regional Administrator shall determine the percent bycatch of regulated 
    multispecies on the basis of sea sampling data and other credible 
    information for the fishery. This was implied in the proposed rule but 
    required clarification. The change from the proposed rule was made to 
    more clearly reflect Council intent and to facilitate the 
    administration of the regulation. Information on which to make 
    decisions will be available on a fishery-wide basis and not only on 
    limited data basis from the closed areas. This is consistent with 
    NMFS's objective to reopen the multispecies
    
    [[Page 7730]]
    
    closed areas to midwater trawl vessels in a cautious manner while 
    ensuring that the bycatch of regulated multispecies is minimal.
    
    Classification
    
        The Regional Administrator, Northeast Region, NMFS, determined that 
    Framework Adjustment 18 is consistent with the Magnuson-Stevens Act and 
    other applicable law.
        Because this rule relieves restrictions on a sector of the fishing 
    industry by allowing fishing for mackerel and herring to occur in areas 
    currently closed to such fishing, under 5 U.S.C. 553(d)(1) it is not 
    subject to a 30-day delay in effective date.
        This action is authorized by 50 CFR part 648 and has been 
    determined not to be significant for purposes of E.O. 12866.
        The Council prepared an IRFA that describes the impact this rule 
    would have on small entities. This action would have a significant, but 
    positive, impact on small business entities because it is expected to 
    increase the annual gross revenues of a substantial number of small 
    business entities by more than 5 percent. The IRFA concluded that this 
    action could affect all of the approximately 35 pelagic midwater trawl 
    vessels (which are small business entities) participating in the 
    fisheries by allowing them to fish in areas currently closed to them, 
    thereby increasing their annual gross revenues by more than 5 percent. 
    Ten to twelve additional vessels could enter these fisheries in the 
    next year. However, it is unlikely that more vessels will enter the 
    fisheries because of the expense, which is estimated to range from 
    $75,000 to $250,000 depending on the changes made, to convert 
    conventional trawl vessels into competitive midwater trawls. Because of 
    the conversion expenses, many vessels would be precluded from entering 
    these fisheries.
        This action could improve the economic competitiveness of all U.S. 
    Atlantic herring and mackerel harvesting operations and preserve the 
    enforceability and effectiveness of the multispecies closed areas. The 
    IRFA indicated that it is difficult to predict the exact increase in 
    annual gross revenues as a result of allowing fishing in the currently 
    closed areas due to the unpredictability of herring and mackerel 
    migrations, but overall annual ex-vessel revenues for the fleet may 
    potentially rise from between $255,684 to $767,051, as compared to 
    taking no action.
        As mentioned earlier, the Council had considered requiring the 100-
    percent observer coverage or having observers present when fish was 
    transferred from the harvesting vessel to the processor, but rejected 
    these alternatives because they were considered too costly for the 
    fleet. No additional alternatives to minimize the economic impacts were 
    considered by the Council because all the impacts are beneficial and 
    need not be minimized. A copy of the IRFA analysis is available from 
    the Council (see ADDRESSES). The FRFA incorporates the IRFA findings 
    with the response to comments received, and addressed above, regarding 
    the proposed rule. Framework Adjustment 18 is expected to increase the 
    annual gross revenues of a substantial number of small business 
    entities by more than 5 percent. Framework Adjustment 18 will have a 
    significant, but positive, economic impact on a substantial number of 
    small business entities.
        This rule refers to a collection of information which is subject to 
    the Paperwork Reduction Act and which has been approved under OMB 
    control number 0648-0202.
    
    List of Subjects in 50 CFR Part 648
    
        Fisheries, Fishing, Reporting and recordkeeping requirements.
    
        Dated: February 10, 1998.
    David L. Evans,
    Deputy Assistant Administrator for Fisheries, National Marine Fisheries 
    Service.
        For the reasons set out in the preamble, 50 CFR part 648 is amended 
    as follows:
    
    PART 648--FISHERIES OF THE NORTHEASTERN UNITED STATES
    
        1. The authority citation for part 648 continues to read as 
    follows:
    
        Authority: 16 U.S.C. 1801 et seq.
    
        2. Section 648.80 is amended by revising paragraphs (d)(2) and 
    (d)(3), and by adding paragraph (d)(5) to read as follows:
    
    
    Sec. 648.80  Regulated mesh areas and restrictions on gear and methods 
    of fishing.
    
    * * * * *
        (d) * * *
        (2) When fishing under this exemption in the GOM/GB and SB/JL 
    Areas, and in the area described in Sec. 648.81(c)(1), the vessel has 
    on board a letter of authorization issued by the Regional 
    Administrator, and complies with all restrictions and conditions 
    thereof.
        (3) The vessel only fishes for, possesses, or lands Atlantic 
    herring, blueback herring, or mackerel in areas north of 42 deg.20' N. 
    lat. and in the areas described in Sec. 648.81(a)(1), (b)(1), and 
    (c)(1); and Atlantic herring, blueback herring, mackerel, or squid in 
    all other areas south of 42 deg.20' N. lat.; and
    * * * * *
        (5) The vessel must carry a NMFS-approved sea sampler/ observer, if 
    requested by the Regional Administrator.
    * * * * *
        3. Section 648.81 is amended by adding paragraph (a)(2)(iii), and 
    by revising paragraphs (a)(2)(ii), (b)(2) introductory text, (c)(2)(i), 
    and (f)(2)(ii) to read as follows:
    
    
    Sec. 648.81  Closed areas.
    
        (a) * * *
        (2) * * *
        (ii) Fishing with or using pelagic hook or longline gear or harpoon 
    gear, provided that there is no retention of regulated species, and 
    provided that there is no other gear on board capable of catching NE 
    multispecies; or
        (iii) Fishing with pelagic midwater trawl gear, consistent with 
    Sec. 648.80(d), provided that the Regional Administrator shall review 
    information pertaining to the bycatch of regulated multispecies, and, 
    if the Regional Administrator determines, on the basis of sea sampling 
    data or other credible information for this fishery, that the bycatch 
    of regulated multispecies exceeds, or is likely to exceed, 1 percent of 
    herring and mackerel harvested, by weight, in the fishery or by any 
    individual fishing operation, the Regional Administrator may place 
    restrictions and conditions in the letter of authorization for any or 
    all individual fishing operations or, after consulting with the 
    Council, suspend or prohibit any or all midwater trawl activities in 
    the closed areas.
        (b) * * *
        (2) Paragraph (b)(1) of this section does not apply to persons on 
    fishing vessels or fishing vessels fishing with gears as described in 
    paragraph (a)(2) of this section, or that are transiting the area 
    provided--
    * * * * *
        (c) * * *
        (2) * * *
        (i) Fishing with gears as described in paragraph (a)(2) of this 
    section;
    * * * * *
        (f) * * *
        (2) * * *
        (ii) That are fishing with or using exempted gear as defined under 
    this part, subject to the restrictions on midwater trawl gear in 
    Sec. 648.81(a)(2)(iii), and excluding pelagic gillnet gear capable of 
    catching multispecies, except vessels may fish with a single pelagic 
    gillnet, not longer than 300 ft (91.44 m.) and not greater
    
    [[Page 7731]]
    
    than 6 ft (1.83 m) deep, with a maximum mesh size of 3 inches (7.62 
    cm), provided the net is attached to the boat, is fished in the upper 
    two-thirds of the water column, and is marked with the owner's name and 
    vessel identification number and provided there is no other gear on 
    board capable of catching multispecies finfish; or
    * * * * *
    [FR Doc. 98-3791 Filed 2-10-98; 4:46 pm]
    BILLING CODE 3510-22-F
    
    
    

Document Information

Effective Date:
2/17/1998
Published:
02/17/1998
Department:
National Oceanic and Atmospheric Administration
Entry Type:
Rule
Action:
Final rule.
Document Number:
98-3791
Dates:
Effective February 17, 1998.
Pages:
7727-7731 (5 pages)
Docket Numbers:
Docket No. 970829217-8025-02, I.D. 081597E
RINs:
0648-AJ79: Final Rule To Implement Framework Adjustment 18 to the Fishery Management Plan for the Northeast Multispecies Fishery
RIN Links:
https://www.federalregister.gov/regulations/0648-AJ79/final-rule-to-implement-framework-adjustment-18-to-the-fishery-management-plan-for-the-northeast-mul
PDF File:
98-3791.pdf
CFR: (5)
50 CFR 648.81(a)(2)(iii)
50 CFR 648.80(d)
50 CFR 648.80(d)(2)
50 CFR 648.80
50 CFR 648.81