96-16078. Limited Access Management of Federal Fisheries In and Off of Alaska; Quota Shares and Individual Fishing Quota on Smaller Vessels  

  • [Federal Register Volume 61, Number 123 (Tuesday, June 25, 1996)]
    [Proposed Rules]
    [Pages 32767-32769]
    From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
    [FR Doc No: 96-16078]
    
    
    
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    DEPARTMENT OF COMMERCE
    
    National Oceanic and Atmospheric Administration
    
    50 CFR Part 676
    
    [Docket No. 960612171-6171-01; I.D. 060496A]
    RIN 0648-AI57
    
    
    Limited Access Management of Federal Fisheries In and Off of 
    Alaska; Quota Shares and Individual Fishing Quota on Smaller Vessels
    
    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 issues a proposed rule to implement Amendment 42 to the 
    Fishery Management Plan (FMP) for the Bering Sea/Aleutian Islands 
    Groundfish, Amendment 42 to the FMP for the Gulf of Alaska Groundfish 
    Fishery, and a regulatory amendment to the Individual Fishing Quota 
    (IFQ) Program for fixed gear Pacific halibut and sablefish fisheries in 
    and off of Alaska. The proposed rule would allow quota shares (QS) and 
    IFQ assigned to vessels in larger size categories to be used on smaller 
    vessels. The North Pacific Fishery Management Council (Council) 
    recommended this action to increase the flexibility of QS use and 
    transfer while maintaining the management goals of the IFQ Program and 
    to provide small boat fishermen with more opportunities to improve the 
    profitability of their operations.
    
    DATES: Comments on the proposed rule and supporting documents must be 
    received by August 5, 1996.
    
    ADDRESSES: Send comments to Ronald J. Berg, Chief, Fisheries Management 
    Division, Attn: Lori Gravel, Alaska Region, National Marine Fisheries 
    Service, P.O. Box 21668, Juneau, AK 99802.
    
        Copies of the proposed Amendments, and the Environmental 
    Assessment/Regulatory Impact Review/Initial Regulatory Flexibility 
    Analysis (EA/RIR/IRFA) for this action may be obtained from the North 
    Pacific Fishery Management Council, Suite 306, 605 West 4th Avenue, 
    Anchorage, AK 99501-2252.
    
    FOR FURTHER INFORMATION CONTACT: James Hale, 907-586-7228.
    
    SUPPLEMENTARY INFORMATION:
    Background
        The Bering Sea and Aleutian Islands (BSAI) and Gulf of Alaska (GOA) 
    groundfish FMPs and their implementing regulations govern the sablefish 
    fisheries in Federal waters off Alaska. The FMPs were prepared by the 
    Council under the authority of the Magnuson Fishery Conservation and 
    Management Act (Magnuson Act). The Northern Pacific Halibut Act of 1982 
    (Halibut Act) authorizes the Council to develop and NMFS to implement 
    regulations to allocate halibut fishing privileges among U.S. 
    fishermen.
        Under these authorities, the Council developed the IFQ Program, a 
    limited access system to manage the fixed gear Pacific halibut and 
    sablefish fisheries. NMFS approved the IFQ Program in November 1993, 
    and fully implemented it beginning in March 1995. The Magnuson Act and 
    the Halibut Act authorize amendments to the IFQ Program as necessary to 
    conserve and manage these fisheries. The proposed amendments to the 
    FMPs and the IFQ Program would increase flexibility of QS use--a change 
    that is analyzed along with the status quo alternative in the draft EA/
    RIR/IRFA prepared by the Council in February 1996.
    Increased Flexibility of QS Use
        The IFQ Program assigns QS to vessel categories specified by length 
    overall (LOA) and authorization to process IFQ species (freezer 
    vessels) or not (catcher vessels): Category A--freezer vessels of any 
    length; Category B--catcher vessels greater than 60 ft (18.3 m) LOA; 
    Category C--for sablefish, catcher vessels less than or equal to 60 ft 
    (18.3 m) LOA, and for halibut, catcher vessels less than or equal to 60 
    ft (18.3 m) but greater than 35 ft (10.7 m) LOA; or Category D--for 
    halibut, catcher vessels less than or equal to 35 ft (10.7 m) LOA. 
    Current regulations at Sec. 676.22(a) require that IFQ be fished only 
    on vessels in the category to which the pertinent QS have been 
    assigned. An exception to this rule allows category B, C, or D IFQ to 
    be fished on a category A freezer vessel provided its LOA is consistent 
    with the vessel category of the IFQ being fished and it neither 
    processes any species of fish nor fishes category A IFQ concurrently 
    with the use of category B, C, or D IFQ (Sec. 676.22(i)(3)). NMFS has 
    published a proposed rule that would amend the regulations to allow IFQ 
    fishermen to process groundfish on board their vessels under certain 
    circumstances (61 FR 14547, April 2, 1996).
        The Council prohibited QS transfer across vessel categories to 
    preserve the
    
    [[Page 32768]]
    
    social and cultural character of the small boat fisheries prior to 
    limited access. Public discussions leading up to IFQ Program 
    implementation elicited substantial concern that harvesting privileges 
    might ultimately transfer to owners of large vessels and disenfranchise 
    owners of small vessels. The Council responded to these concerns in 
    part by establishing vessel categories and prohibiting transfer and use 
    of QS and IFQ across those categories. Thus, these transfer 
    restrictions were intended to prevent consolidation of harvesting 
    privileges among owners of large vessels.
        Concern over the potential for excessive consolidation also led to 
    the Modified Block Program implemented under Amendments 31 and 35 to 
    the BSAI and GOA FMPs respectively and IFQ Program amendments published 
    at 60 FR 51135 (October 7, 1994). The Modified Block Program requires 
    an initial allocation of QS that represents less than 20,000 lb (9.1 
    mt) of IFQ in the year prior to the implementation year (1994) to be 
    issued as an indivisible block that can be transferred in its entirety 
    only.
        During the first year of fishing under the IFQ Program in 1995, IFQ 
    fishermen and their representatives reported to the Council that the 
    prohibition against using or transferring QS across vessel categories 
    limited their ability to improve the profitability of their operations. 
    Many fishermen reported that they had received QS that represented far 
    fewer pounds than their recent catch history prior to the IFQ program. 
    Small boat fishermen reported the scarcity of medium- and large-size QS 
    blocks (5,000 lb (2.3 mt)) available to smaller vessels and 
    requested that the Council enable them to purchase shares from QS 
    holders in larger vessel size categories. Also, category B vessel 
    operators reported difficulties in using or marketing small category B 
    blocks and requested the opportunity either to downsize operations or 
    to sell smaller QS blocks to owners of smaller vessels.
        This action would address the above concerns by allowing QS 
    initially assigned to a larger vessel category to be used on smaller 
    vessels, while continuing to prohibit the upgrading of QS or IFQ to 
    larger vessel categories. Under the proposed amendments, QS would 
    continue to be assigned to vessel categories by existing criteria at 
    Sec. 676.20(c)(1)-(9) and would retain original vessel category 
    assignments in perpetuity. However, the proposed amendments would allow 
    halibut and sablefish QS and IFQ assigned to vessel category B to be 
    used on vessels of any size; halibut QS assigned to vessel category C 
    likewise could be used on vessels of categories C and D. The proposed 
    amendments would continue to prohibit the use of QS and IFQ on larger 
    vessel categories than originally assigned.
        In taking final action on this proposal, the Council elected to 
    diminish the effect the proposed amendment would have in IFQ regulatory 
    areas 2C for halibut and east of 140 deg. W. long. for sablefish. In 
    these regulatory areas the proportion of QS assigned to vessel category 
    B is significantly smaller than the amount assigned to other vessel 
    categories. Excessive consolidation of QS among smaller vessels in this 
    region of the GOA would reduce the larger vessel fleet and thus also 
    have an undesirable impact on the fisheries' socio-economic character. 
    This action proposes that QS assigned to vessel category B in IFQ 
    regulatory areas 2C for halibut and east of 140 deg. W. long. for 
    sablefish be prohibited from use on vessels less than or equal to 60 ft 
    (18.3 m) LOA except in QS blocks equivalent to less than 5,000 lb (2.3 
    mt) based on the 1996 Total Allowable Catch (TAC).
        For example, an individual who holds two blocks of QS assigned to 
    vessel category B in regulatory area 2C (for halibut) or east of 
    140 deg. W. long. (for sablefish)--one block equivalent to 13,000 lb 
    (5.9 mt) and the other equivalent to 3000 lb (1.4 mt) (according to the 
    1996 TAC)--would be able to transfer the smaller QS block or use its 
    resulting IFQ on catcher vessels of any size, since the block is 
    equivalent to less than 5,000 lb (2.3 mt). The larger QS block, which 
    would result in IFQ of more than 5,000 lb (2.3 mt), would still be 
    prohibited from use on any vessel other than one in vessel category B. 
    Unblocked QS of any amount assigned to vessel category B in areas 2C 
    and east of 140 deg. W. long. would continue to be restricted to 
    transfer or use on vessels in category B only.
        This action would provide owners of small boats with opportunities 
    to acquire QS initially assigned to larger vessel categories and would 
    make smaller category B blocks more marketable. The Council's intent to 
    prevent excessive consolidation of QS among owners of larger vessels 
    would be maintained, while providing greater economic potential for 
    owners/operators of smaller boats in the IFQ fisheries. Conversely, the 
    additional provision to lessen the effect of the proposed action in 
    regulatory areas 2C for halibut and east of 140 deg. W. long. for 
    sablefish would prevent excessive consolidation among owners of smaller 
    boats in areas where category B QS are relatively few.
    
    Classification
    
        Section 304(a)(1)(D) of the Magnuson Act requires NMFS to publish 
    regulations proposed by a Council within 15 days of receipt of the FMP 
    amendments and regulations. At this time, NMFS has not determined that 
    the FMP amendments these regulations would implement are consistent 
    with the national standards, other provisions of the Magnuson Act, and 
    other applicable laws. NMFS, in making final determinations about the 
    FMP amendments and in issuing final rules under both the Magnuson and 
    Halibut Acts, will take into account the data, views, and comments 
    received during the comment period.
        The Council prepared an initial regulatory flexibility analysis as 
    part of the regulatory impact review, which describes the impact this 
    proposed rule would have on small entities, if adopted. The amendments 
    could have a significant positive impact on small vessel owners. They 
    open new opportunities for owners of smaller vessels to improve the 
    profitability of their operations by increasing the quota share 
    holdings available for trade by 309 percent and the IFQ pounds 
    available for trade by 2,547 percent. A copy of the analysis is 
    available from the Council (see ADDRESSES).
        This proposed rule has been determined to be not significant for 
    purposes of E.O. 12866.
    
    List of Subjects in 50 CFR Part 676
    
        Alaska, Fisheries, Reporting and recordkeeping requirements.
    
        Dated: June 19, 1996.
    Gary Matlock,
    Program Management Officer, National Marine Fisheries Service.
        For the reasons set forth in the preamble, 50 CFR part 676 is 
    proposed to be amended as follows:
    
    PART 676--LIMITED ACCESS MANAGEMENT OF FEDERAL FISHERIES IN AND OFF 
    OF ALASKA
    
        1. The authority citation for 50 CFR part 676 continues to read as 
    follows:
    
        Authority: 16 U.S.C. 773 et seq. and 1801 et seq.
    
        2. In Sec. 676.20, paragraph (a)(2) is revised to read as follows:
    
    
    Sec. 676.20  Individual allocations.
    
    * * * * *
        (a) * * *
        (2) Vessel categories. QS and IFQ assigned to vessel categories 
    include:
        (i) Category A--QS and IFQ, which authorizes an IFQ cardholder to 
    harvest and process IFQ species on a freezer vessel of any length;
    
    [[Page 32769]]
    
        (ii) Category B--QS and IFQ, which authorizes and IFQ cardholder to 
    harvest IFQ species on a catcher vessel of any length;
        (iii) Category C--QS and IFQ, which authorizes an IFQ cardholder to 
    harvest IFQ species on a catcher vessel less than or equal to 60 ft 
    (18.3 m) in length overall; and
        (iv) Category D--QS and IFQ, which authorizes an IFQ cardholder to 
    harvest IFQ halibut on a catcher vessel less than or equal to 35 ft 
    (10.7 m) in length overall.
    * * * * *
        3. In Sec. 676.22, paragraph (a) is revised to read as follows:
    
    
    Sec. 676.22  Limitations on use of QS and IFQ
    
        (a) The IFQ specified for one IFQ regulatory area must not be used 
    in a different IFQ regulatory area. Except as provided in paragraph 
    (i)(3) of this section or in Sec. 676.21(h)(1), the IFQ assigned to one 
    vessel category as provided in Sec. 676.20(a) must not be used to 
    harvest IFQ species on a vessel of a different vessel category. 
    Notwithstanding Sec. 676.20(a)(2)(ii), IFQ assigned to vessel category 
    B must not be used on any vessel less than or equal to 60 ft (18.3 m) 
    in length overall to harvest IFQ halibut in IFQ regulatory area 2C or 
    IFQ sablefish in the IFQ regulatory area east of 140 deg. W. long. 
    unless such IFQ derives from blocked QS units that result in IFQ of 
    less than 5,000 lb (2.3 mt), based on the 1996 TAC for fixed gear 
    specified for the IFQ halibut fishery and the IFQ sablefish fishery in 
    each of these two regulatory areas.
    * * * * *
    [FR Doc. 96-16078 Filed 6-20-96; 9:26 am]
    BILLING CODE 3510-22-F
    
    

Document Information

Published:
06/25/1996
Department:
National Oceanic and Atmospheric Administration
Entry Type:
Proposed Rule
Action:
Proposed rule; request for comments.
Document Number:
96-16078
Dates:
Comments on the proposed rule and supporting documents must be received by August 5, 1996.
Pages:
32767-32769 (3 pages)
Docket Numbers:
Docket No. 960612171-6171-01, I.D. 060496A
RINs:
0648-AI57: Amendment 42 to the FMP for the Groundfish Fishery of the Bering Sea and Aleutian Islands and Amendment 42 to the FMP for the Groundfish Fishery of the Gulf of Alaska
RIN Links:
https://www.federalregister.gov/regulations/0648-AI57/amendment-42-to-the-fmp-for-the-groundfish-fishery-of-the-bering-sea-and-aleutian-islands-and-amendm
PDF File:
96-16078.pdf
CFR: (3)
50 CFR 676.20(c)(1)-(9)
50 CFR 676.20
50 CFR 676.22