[Federal Register Volume 61, Number 178 (Thursday, September 12, 1996)]
[Proposed Rules]
[Pages 48113-48118]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-23039]
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DEPARTMENT OF COMMERCE
National Oceanic and Atmospheric Administration
50 CFR Part 679
[Docket No. 960830240-6240-01; I.D. 082796A]
RIN 0648-AH28
Fisheries of the Exclusive Economic Zone Off Alaska; Groundfish
of the Bering Sea and Aleutian Islands Area; Trawl Closure to Protect
Red King Crab
AGENCY: National Marine Fisheries Service (NMFS), National Oceanic and
Atmospheric Administration (NOAA), Commerce.
ACTION: Proposed rule and supplemental proposed rule; request for
comments.
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SUMMARY: NMFS issues this proposed rule to implement Amendment 37 to
the Fishery Management Plan for the Groundfish Fishery of the Bering
Sea and Aleutian Islands Area (FMP). This rule would implement trawl
closure areas in portions of Bristol Bay, adjust the prohibited species
catch limit for red king crab in Zone 1 of the Bering Sea, and increase
observer coverage in specified areas related to the trawl closures.
These measures are necessary to protect red king crab in Bristol Bay,
which has declined to a level that presents a serious conservation
problem for this stock. They are intended to accomplish the objectives
of the North Pacific Fishery Management Council (Council) with respect
to fishery management in the Bering Sea and Aleutian Islands Management
area (BSAI).
DATES: Comments must be submitted by October 28, 1996.
ADDRESSES: Comments may be sent to Ronald J. Berg, Chief, Fisheries
Management Division, Alaska Region, National Marine Fisheries Service,
P.O. Box 21668, Juneau, AK 99802, Attn: Lori Gravel. Copies of the
Environmental Assessment/Regulatory Impact Review/Initial Regulatory
[[Page 48114]]
Flexibility Analysis (EA/RIR/IRFA) prepared for the proposed rule may
be obtained from the North Pacific Fishery Management Council, 605 West
4th Avenue, Suite 306, Anchorage, AK 99501-2252; telephone 907-271-
2809.
FOR FURTHER INFORMATION CONTACT: Kaja Brix, 907-586-7228.
SUPPLEMENTARY INFORMATION:
Background
Fishing for groundfish by U.S. vessels in the exclusive economic
zone of the BSAI is managed by NMFS according to the FMP. The FMP was
prepared by the Council under the Magnuson Fishery Conservation and
Management Act (16 U.S.C. 1801, et seq.) (Magnuson Act), and is
implemented by regulations governing the U.S. groundfish fisheries at
50 CFR part 679.
Bering Sea crab stocks are currently at relatively low levels based
on 1995 NMFS bottom trawl survey data, which indicated that exploitable
biomass of Bristol Bay red king crab is at about one-fifth record
levels. The red king crab stock is at its lowest level since the
fishery was closed after the first stock collapse in 1983. In 1994 and
1995, Bristol Bay was closed to red king crab fishing because the
number of female red king crab had declined below the threshold of 8.4
million crab. Under the Fishery Management Plan for the Commercial King
and Tanner Crab Fisheries in the Bering Sea and Aleutian Islands (Crab
FMP), the commercial red king crab fishery is closed entirely when a
red king crab stock component is at or near the threshold. In addition,
the annual trawl surveys indicated little prospect for increased
recruitment of mature males or females, and low female spawning
biomass. Also, the area east of 163 deg. W. long. was closed to Tanner
crab fishing to minimize the bycatch of female red king crab.
In view of the declining red king crab stock and the need to
further protect and conserve red king crab in the Bristol Bay area of
the Bering Sea, NMFS issued an emergency rule in 1995 (60 FR 4866,
January 25, 1995), which established and closed the Red King Crab
Savings Area (RKCSA) to all trawling. At its September 1995 meeting,
the Council adopted Amendment 37 to the FMP to close the RKCSA from
January 20 to March 31 each year. In 1996, NMFS closed the RKCSA by
inseason adjustment (60 FR 63451, December 11, 1995) from January 20 to
March 31, 1996. Continued low abundance of crab stocks caused the
Council to express additional concerns about opening the RKCSA and
resulted in a recommendation at the January 1996 Council meeting for an
extension to the 1996 inseason adjustment to close the RKCSA until June
15, 1996 (61 FR 8889, March 6, 1996), to further protect red king crab
during the molting and mating period.
The Council then notified the public that it intended to revisit
the previous action on Amendment 37 and requested staff to prepare
additional information on potential impacts of modifying the closure
time to 6 months or to a year-round closure. Based on information
provided at its June 1996 meeting, the Council recommended the
following expanded management measures under Amendment 37 to protect
the declining stocks of red king crab in Bristol Bay:
1. A year-round closure in the RKCSA to directed fishing for
groundfish by vessels using non-pelagic trawl gear. A subarea of the
RKCSA between 56 deg. and 56 deg.10 N. lat. would open if a guideline
harvest level for Bristol Bay red king crab is established. A portion
of the annual red king crab prohibited species catch (PSC) limit would
be specified for the RKCSA subarea (RKCSS) that, when reached, would
result in closure of the RKCSS to vessels fishing with non-pelagic
trawl gear;
2. A year-round closure to all trawling in the nearshore waters of
Bristol Bay, with the exception that a portion of this area, between
159 deg. and 160 deg. W. long. and between 58 deg. and 58 deg.43' N.
lat. would remain open to trawling during the period April 1 to June 15
each year. Existing regulations at Sec. 679.22(a) would be removed.
These regulations authorize opening the Port Moller area of reporting
areas 512 and 516 to fishing for Pacific cod with trawl gear; and
3. Adjustments to the Zone 1 PSC limit for red king crab taken in
trawl fisheries. The PSC limit would be specified annually based on the
abundance and biomass of Bristol Bay red king crab.
Increased observer coverage is proposed on all vessels, including
vessels using pot, jig, and longline gear, fishing for groundfish in
the RKCSA and on trawl vessels fishing in the seasonal open area of the
Bristol Bay nearshore waters closure.
Details of and justification for these measures follow:
RKCSA
Based on NMFS' survey data, the 1994 abundance index for legal-
sized male Bristol Bay red king crab was 5.5 million crab compared to
7.3 million in 1993. The abundance index for mature female crab
declined from 14.2 million crab in 1993 to 7.5 million crab in 1994.
The number of mature female red king crab is below the threshold value
of 8.4 million crab established pursuant to the Crab FMP.
The 1995 NMFS trawl survey indicated reduced numbers of large red
king crab of both sexes in Bristol Bay. Additionally, the abundance of
mature females was at or below threshold, and consequently, no fishery
was permitted in 1995. Survey indices of abundance for juvenile males
and small females were the highest observed in many years. These crab
represent the cornerstone of stock rebuilding, as protection of these
crab through maturity may result in increased spawning and recruitment
in future years.
Analysis of crab distribution data indicates that the RKCSA
provides substantial habitat for red king crab. Various size-sex-
maturity groups that have been vulnerable to trawling or other
commercial fishing gear have been found in the process of molting or in
a soft shell condition from the last week of January through the end of
June or sometimes later. The timing of molting for various groups
varies considerably from year to year, which indicates the need for
increased protection of red king crab.
The dates adopted by the Council in September 1995 for the RKCSA
closure (January 20-March 31) do not encompass the entire molting and
mating period of red king crab. Additionally, unobserved impacts of
trawling on softshell crab may impact crab rebuilding and future crab
harvests by pot fisheries. Therefore, extended duration of the closure
period provides for increased protection of adult red king crab and
their habitat.
As a result, at its June 1996 meeting, the Council recommended a
year-round closure of the RKCSA to ensure conservation of the red king
crab resource in the Bristol Bay area of the Bering Sea. NMFS would
prohibit directed fishing for groundfish by vessels using trawl gear,
other than pelagic trawl gear, in the RKCSA, that portion of the Bering
Sea that is bounded by a straight line connecting the following
coordinates in the order listed below:
Latitude Longitude
56 deg.00' N., 162 deg.00' W.
56 deg.00' N., 164 deg.00' W.
57 deg.00' N., 164 deg.00' W.
57 deg.00' N., 162 deg.00' W.
56 deg.00' N., 162 deg.00' W.
The Council also recommended that a portion of the above-described
area, between 56 deg.00' N. lat. and 56 deg.10' N. lat. remain open to
non-pelagic trawling for groundfish if a guideline harvest level for
Bristol Bay red king crab is established. The RKCSS has been
[[Page 48115]]
productive for the rock sole fishery, and an opening of the RKCSS would
allow some of the rock sole to be harvested. From 1990 through 1994,
the RKCSS accounted for 13 percent to 35 percent of the annual
groundfish harvest in the rock sole fishery in Zone 1. However, the
RKCSS also has accounted for a relatively high percentage of the Zone 1
red king crab bycatch, ranging from 12 percent to 47 percent during the
same period.
If the RKCSS reopened, an amount of the annual Zone 1 red king crab
PSC limit would be specified for the RKCSS that, when reached, would
result in closure of the RKCSS to vessels fishing with non-pelagic
trawl gear. The amount of the Zone 1 red king crab PSC limit specified
for the RKCSS would be equivalent to no more than 35 percent of the
amount of the red king crab PSC limit apportioned to the rock sole
fishery. Trawl vessels fishing in the RKCSS would continue to accrue
any associated king crab bycatch against the red king crab bycatch
allowance specified for the fishery the vessel is participating in. The
RKCSS would be closed to vessels fishing with non-pelagic trawl gear
when either the Zone 1 red king crab bycatch limit is reached or the
amount of the PSC limit specified for the RKCSS is reached.
Determination of the actual amount of the Zone 1 red king crab
bycatch limit for the RKCSS would be specified by NMFS, after
consultation with the Council, and based on the need to optimize the
groundfish harvest relative to red king crab bycatch.
Further details on the high fishing effort in the RKCSA and the
associated high bycatch of red king crab, especially in the rock sole/
other flatfish category can be found in the preamble to the 1995
emergency rule (60 FR 4866, January 25, 1995).
Nearshore Bristol Bay Trawl Closure
With the declining crab resource, the Council is also concerned
about the protection of juvenile red king crab and critical rearing
habitat. Therefore, the Council recommended in addition to the RKCSA
closure, that all trawling be prohibited on a year-round basis in the
nearshore waters of Bristol Bay in the area east of 162 deg. W. long.,
which essentially encompasses all of Bristol Bay. Such a closure would
also benefit juvenile halibut, seabirds, marine mammals, and spawning
herring stocks. The area within 3 mi (4.83 km) of shore within Bristol
Bay has been closed to trawling year-round under state regulations (5
AAC 39.165) since 1993.
The area bounded by 159 deg.00' to 160 deg.00' W. long. and
58 deg.00' to 58 deg.43' N. lat. would remain open to trawling during
the period April 1 to June 15 each year. Harvest information indicates
that allowing trawling in this area could yield high catches of
flatfish and low bycatch of other species. The April 1 to June 15 time
period is proposed to reduce bycatch rates of halibut, which move into
the nearshore area in June. Sea ice generally prevents fishing
operations in northern Bristol Bay before April 1.
The trawl closure north of 58 deg.43' N. lat. is proposed to reduce
the potential for high bycatch rates of Pacific herring, a prohibited
species in the groundfish fisheries. Increased bycatch rates of herring
could increase the potential for reaching trawl fishery bycatch
allowances of herring and closure of the Herring Savings Areas under
regulations at Sec. 679.21(e)(7)(v). Increased bycatch rates of herring
also would precipitate public concern within Western Alaska communities
that rely on herring stocks to support subsistence fisheries.
The Council anticipates that the trawl closure area designed to
protect juvenile red king crab habitat will maintain and possibly
increase recruitment of red king crab. Young-of-the-year red king crab
require cobble substrate or epifaunal life forms on which to settle and
provide protection from predators. Much of this habitat is already
protected by the Area 512 trawl closure. Additional habitat for age-0
red king crab has been found to occur in the shallow waters (<50 m)="" of="" area="" 508,="" and="" in="" the="" area="" north="" of="" 58="" deg.="" n.="" lat.="" in="" addition="" to="" establishing="" the="" nearshore="" trawl="" closure="" area,="" the="" council="" also="" recommended="" that="" nmfs="" remove="" regulations="" at="" sec.="" 679.22(a)(1)(ii),="" (a)(2)(ii),="" and="" (a)(3)="" that="" allow="" trawling="" for="" pacific="" cod="" in="" the="" port="" moller="" area.="" the="" port="" moller="" exemption="" area="" for="" trawl="" gear="" was="" established="" in="" 1987="" by="" amendment="" 10="" to="" the="" fmp.="" these="" regulations="" originally="" provided="" an="" opportunity="" to="" fish="" for="" pacific="" cod="" with="" trawl="" gear="" in="" portions="" of="" bsai="" reporting="" areas="" 512="" and="" 516,="" provided="" that="" such="" fishing="" was="" in="" compliance="" with="" a="" scientific="" data="" collection="" and="" monitoring="" program.="" a="" separate="" psc="" limit="" of="" 12,000="" red="" king="" crab="" applied="" to="" this="" area="" in="" the="" advent="" that="" trawl="" operations="" were="" allowed.="" fisheries="" for="" pacific="" cod="" occurred="" within="" these="" areas="" in="" 1986="" to="" 1990.="" although="" these="" regulations="" provide="" the="" authority="" to="" open="" these="" areas,="" the="" authority="" has="" not="" been="" invoked="" since="" 1990.="" in="" light="" of="" the="" current="" status="" of="" red="" king="" crab="" and="" the="" fact="" that="" a="" fishery="" has="" not="" occurred="" in="" these="" areas="" in="" recent="" years,="" the="" council="" recommended="" that="" these="" regulations="" be="" removed.="" in="" addition,="" to="" maintain="" consistency="" with="" the="" council's="" intent="" for="" implementation="" of="" amendment="" 1="" to="" the="" fishery="" management="" plan="" for="" the="" scallop="" fishery="" off="" alaska="" (scallop="" fmp),="" nmfs="" also="" proposes="" to="" amend="" regulations="" at="" sec.="" 679.62(d).="" the="" council="" recommended="" amendment="" 1="" to="" the="" scallop="" fmp="" in="" june="" of="" 1995="" and="" the="" final="" rule="" implementing="" this="" amendment="" was="" published="" on="" july="" 23,="" 1996="" (61="" fr="" 38099).="" under="" section="" 2.5.5="" of="" the="" scallop="" fmp,="" the="" council="" intended="" that="" areas="" closed="" to="" vessels="" fishing="" for="" groundfish="" with="" non-pelagic="" trawl="" gear="" to="" protect="" red="" king="" crab="" or="" red="" king="" crab="" habitat="" would="" also="" be="" closed="" to="" scallop="" dredging="" to="" ensure="" protection="" of="" red="" king="" crab.="" therefore,="" nmfs="" is="" proposing="" to="" amend="" regulations="" at="" sec.="" 679.62(d),="" to="" include="" the="" rkcsa="" and="" the="" nearshore="" bristol="" bay="" trawl="" closure="" area="" as="" areas="" that="" would="" also="" be="" closed="" to="" scallop="" dredging.="" historical="" data="" indicate="" that="" scallop="" fishing="" has="" not="" occurred="" in="" the="" rkcsa="" and="" the="" nearshore="" bristol="" bay="" trawl="" closure="" area;="" therefore,="" operators="" of="" scallop="" vessels="" should="" not="" be="" affected="" by="" these="" closures.="" observer="" coverage="" all="" vessels,="" including="" vessels="" using="" pot,="" jig,="" and="" longline="" gear,="" that="" fish="" for="" groundfish="" in="" the="" rkcsa="" would="" be="" required="" to="" carry="" an="" observer="" during="" 100="" percent="" of="" their="" fishing="" days.="" this="" provision="" for="" increased="" observer="" coverage="" also="" would="" apply="" to="" vessels="" using="" non-="" pelagic="" trawl="" gear="" to="" fish="" for="" groundfish="" in="" the="" rkcss="" when="" this="" subarea="" of="" the="" rkcsa="" is="" open="" to="" non-pelagic="" trawling.="" this="" increased="" observer="" requirement="" is="" necessary="" to="" ensure="" that="" operators="" of="" vessels="" using="" pelagic="" trawl="" gear="" adhere="" to="" the="" current="" crab="" performance="" standard="" for="" pelagic="" trawl="" gear="" set="" out="" at="" sec.="" 679.7(c)(4)="" and="" to="" more="" fully="" monitor="" crab="" bycatch="" in="" non-pelagic="" trawl="" and="" other="" gear="" fishing="" operations.="" for="" the="" same="" reason,="" the="" council="" also="" recommended="" 100="" percent="" observer="" coverage="" for="" trawl="" vessels="" fishing="" for="" groundfish="" in="" the="" area="" of="" the="" nearshore="" bristol="" bay="" trawl="" closure="" bounded="" by="" 159="" deg.="" and="" 160="" deg.="" w.="" long.="" and="" 58="" deg.="" and="" 58="" deg.43'="" n.="" lat.="" when="" this="" area="" is="" open="" to="" trawling="" from="" april="" 1="" to="" june="" 15="" each="" year.="" the="" number="" of="" vessels="" that="" may="" be="" affected="" by="" the="" requirement="" for="" increased="" observer="" coverage="" is="" not="" known="" and="" would="" depend="" on="" the="" current="" level="" of="" observer="" coverage="" for="" individual="" vessels="" as="" well="" as="" a="" vessel="" operator's="" decision="" on="" whether="" to="" fish="" in="" the="" areas="" subject="" to="" increased="" observer="" coverage.="" however,="" for="" those="" vessels="" that="" would="" require="" increased="" observer="" [[page="" 48116]]="" coverage,="" the="" cost="" per="" vessel="" per="" day="" is="" approximately="" $200.="" the="" term="" ``fishing="" days''="" is="" defined="" at="" sec.="" 679.2="" for="" purposes="" of="" observer="" coverage="" requirements="" and="" does="" not="" include="" days="" during="" which="" a="" vessel="" only="" delivers="" unsorted="" codends="" to="" a="" processor.="" therefore,="" catcher="" vessels="" used="" only="" for="" this="" purpose="" would="" be="" exempt="" from="" increased="" observer="" coverage="" requirements.="" the="" proposed="" increase="" in="" observer="" coverage="" outlined="" above="" is="" a="" supplement="" to="" a="" previous="" proposed="" rule="" published="" on="" august="" 2,="" 1996="" (61="" fr="" 40353),="" that,="" if="" approved="" by="" nmfs,="" would="" establish="" 1997="" observer="" coverage="" levels.="" pending="" their="" approval,="" nmfs="" anticipates="" the="" august="" 2="" proposed="" rule="" will="" be="" effective="" prior="" to="" the="" effective="" date="" of="" increased="" observer="" coverage="" requirements="" proposed="" under="" this="" action.="" zone="" 1="" psc="" limit="" the="" council="" adopted="" a="" modification="" to="" the="" 200,000="" red="" king="" crab="" psc="" limit="" currently="" established="" for="" zone="" 1="" and="" recommended="" that="" the="" psc="" limit="" be="" annually="" specified="" based="" on="" the="" population="" indicators="" of="" bristol="" bay="" red="" king="" crab="" outlined="" as="" follows:="" a.="" when="" the="" number="" of="" mature="" female="" red="" king="" crab="" is="" equal="" to="" or="" below="" the="" threshold="" number="" of="" 8.4="" million="" crab,="" or="" the="" effective="" spawning="" biomass="" (esb)="" is="" less="" than="" 14.5="" million="" lb="" (6,577="" mt),="" the="" zone="" 1="" red="" king="" crab="" psc="" limit="" would="" be="" 35,000="" crabs;="" b.="" when="" the="" number="" of="" mature="" female="" red="" king="" crab="" is="" above="" threshold,="" and="" the="" esb="" is="" equal="" to="" or="" greater="" than="" 14.5="" million="" lb="" (6,577="" mt)="" but="" less="" than="" 55="" million="" lb="" (24,948="" mt),="" the="" zone="" 1="" red="" king="" crab="" psc="" limit="" would="" be="" 100,000="" crab;="" and="" c.="" when="" the="" number="" of="" mature="" female="" red="" king="" crab="" is="" above="" threshold,="" and="" the="" esb="" is="" equal="" to="" or="" greater="" than="" 55="" million="" lb="" (24,948="" mt)="" the="" zone="" 1="" red="" king="" crab="" psc="" limit="" would="" be="" 200,000="" crab.="" crab="" are="" caught="" incidentally="" during="" harvest="" operations="" for="" groundfish.="" one="" objective="" of="" the="" fmp="" is="" to="" minimize="" the="" impact="" of="" bsai="" groundfish="" fisheries="" on="" crab="" and="" other="" prohibited="" species="" while="" providing="" for="" rational="" and="" optimal="" use="" of="" the="" region's="" fishery="" resource.="" all="" gear="" types="" used="" to="" catch="" groundfish="" have="" some="" potential="" to="" catch="" crab="" incidentally,="" but="" most="" of="" the="" crab="" bycatch="" occurs="" in="" trawl="" fisheries.="" a="" psc="" limit="" of="" 135,000="" red="" king="" crab="" was="" established="" in="" 1987="" for="" the="" domestic="" yellowfin="" sole/other="" flatfish="" fishery="" in="" zone="" 1.="" this="" psc="" limit="" was="" based="" on="" a="" negotiated="" agreement="" between="" crab="" and="" groundfish="" industry="" representatives.="" in="" 1989,="" the="" zone="" 1="" red="" king="" crab="" psc="" limit="" was="" extended="" to="" the="" remaining="" trawl="" fisheries="" and="" increased="" to="" the="" current="" level="" of="" 200,000="" crab.="" this="" psc="" limit="" is="" apportioned="" among="" trawl="" fisheries="" during="" the="" annual="" specification="" process="" as="" fishery="" specific="" bycatch="" allowances.="" when="" a="" fishery="" attains="" its="" specified="" bycatch="" allowance,="" zone="" 1="" is="" closed="" to="" that="" fishery.="" the="" bycatch="" of="" red="" king="" crab="" in="" bsai="" groundfish="" fisheries="" totaled="" 48,191="" in="" 1995,="" which="" was="" down="" significantly="" from="" a="" recent="" high="" of="" 281,023="" in="" 1994.="" most="" red="" king="" crab="" bycatch="" is="" taken="" in="" the="" trawl="" fisheries="" (97="" percent).="" the="" rock="" sole/flathead="" sole/``other="" flatfish''="" fishery="" accounts="" for="" most="" of="" the="" red="" king="" crab="" trawl="" bycatch.="" approximately="" 80="" percent="" of="" the="" red="" king="" crab="" bycatch="" has="" been="" taken="" from="" the="" area="" encompassed="" by="" the="" existing="" crab="" protection="" zone="" 1.="" the="" council's="" proposed="" adjustment="" to="" the="" red="" king="" crab="" psc="" limit="" is="" an="" effort="" to="" protect="" further="" the="" stocks="" of="" bristol="" bay="" red="" king="" crab="" by="" limiting="" the="" incidental="" take="" of="" this="" species="" when="" the="" stock="" is="" depressed.="" the="" proposed="" criteria="" for="" the="" annual="" specification="" of="" the="" psc="" limit="" were="" developed="" by="" the="" bsai="" crab="" plan="" team,="" based="" on="" input="" from="" the="" council's="" scientific="" and="" statistical="" committee,="" and="" use="" the="" mature="" female="" crab="" threshold="" number="" established="" in="" the="" crab="" fmp="" plus="" the="" effective="" spawning="" biomass="" annually="" derived="" by="" nmfs="" and="" the="" alaska="" department="" of="" fish="" and="" game="" as="" a="" basis="" for="" establishing="" an="" annual="" red="" king="" crab="" psc="" limit.="" in="" addition="" to="" the="" above,="" the="" ea/rir/irfa="" for="" amendment="" 37="" also="" includes="" information="" on="" and="" alternatives="" for="" bycatch="" limits="" for="" tanner="" and="" snow="" crab.="" however,="" the="" council="" made="" no="" recommendations,="" other="" than="" the="" status="" quo,="" on="" bycatch="" limits="" for="" tanner="" and="" snow="" crab="" at="" this="" time.="" the="" council="" indicated="" that="" action,="" other="" than="" status="" quo,="" may="" be="" taken="" in="" september="" 1996.="" if="" measures="" are="" adopted="" at="" that="" time,="" they="" would="" proceed="" as="" a="" separate="" fmp="" amendment.="" economic="" considerations="" estimates="" based="" on="" the="" bering="" sea="" simulation="" model="" indicate="" that="" the="" proposed="" management="" measures="" would="" lead="" to="" a="" slight="" decrease="" in="" the="" net="" benefits="" to="" the="" nation="" over="" the="" status="" quo="" based="" on="" both="" the="" 1993="" and="" 1994="" data.="" the="" approximately="" $1.1="" million="" decrease="" in="" net="" benefits="" (1993="" data)="" and="" $1.3="" million="" decrease="" in="" net="" benefits="" (1994="" data)="" result="" in="" approximately="" a="" 0.4="" percent="" and="" a="" 0.5="" percent="" decrease="" of="" the="" net="" benefits="" to="" the="" nation="" under="" status="" quo="" from="" 1993="" and="" 1994="" data,="" respectively.="" however,="" given="" a="" certain="" level="" of="" uncertainty="" inherent="" in="" the="" data,="" and="" in="" the="" model="" procedures,="" these="" predicted="" changes="" in="" net="" benefits="" to="" the="" nation="" are="" probably="" not="" great="" enough="" to="" indicate="" an="" actual="" change="" from="" the="" status="" quo.="" in="" general,="" time="" area="" closures="" cause="" shifts="" in="" groundfish="" fishery="" effort.="" with="" each="" additional="" bycatch="" restriction,="" options="" for="" the="" groundfish="" trawl="" fleets="" are="" reduced="" and="" these="" effort="" shifts="" could="" increase="" the="" bycatch="" of="" other="" prohibited="" species.="" to="" some="" extent,="" this="" situation="" occurred="" in="" the="" rock="" sole="" trawl="" fishery="" as="" a="" result="" of="" implementing="" the="" rkcsa="" in="" 1995="" and="" 1996.="" however,="" these="" tradeoffs="" will="" occur="" with="" any="" protection="" closure="" that="" may="" be="" implemented.="" other="" proposed="" changes="" to="" the="" regulations="" nmfs="" proposes="" to="" correct="" the="" regulations="" at="" sec.="" 679.21(e)(7)(iii)="" to="" remove="" an="" incorrect="" reference="" to="" a="" zone="" 2="" red="" king="" crab="" psc="" limit.="" nmfs="" also="" proposes="" to="" clarify="" the="" regulations="" by="" rearranging="" regulatory="" text.="" the="" paragraph="" that="" closes="" the="" chum="" salmon="" savings="" area="" was="" originally="" placed="" in="" the="" prohibited="" species="" management="" section="" of="" regulations="" at="" sec.="" 679.21.="" nmfs="" proposes="" to="" redesignate="" this="" paragraph="" from="" the="" prohibited="" species="" management="" section="" at="" sec.="" 679.21(e)(7)(vi)(a)(1)="" to="" sec.="" 679.22(a)(10),="" the="" closure="" section.="" this="" redesignation="" would="" simply="" move="" an="" existing="" paragraph="" from="" one="" section="" to="" another="" more="" applicable="" section="" to="" maintain="" consistency="" in="" the="" placement="" of="" closure="" restrictions.="" 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="" an="" fmp="" amendment="" and="" regulations.="" at="" this="" time,="" nmfs="" has="" not="" determined="" that="" the="" fmp="" amendment="" these="" rules="" would="" implement="" is="" consistent="" with="" the="" national="" standards,="" other="" provisions="" of="" the="" magnuson="" act,="" and="" other="" applicable="" laws.="" nmfs,="" in="" making="" that="" determination,="" will="" take="" into="" account="" the="" data,="" views,="" and="" comments="" received="" during="" the="" comment="" period.="" the="" council="" prepared="" an="" irfa="" as="" part="" of="" the="" rir,="" which="" describes="" the="" impact="" this="" proposed="" rule="" would="" have="" on="" small="" entities,="" if="" adopted.="" many="" trawl="" vessels="" and="" processors="" participating="" in="" the="" bsai="" groundfish="" fishery="" could="" be="" affected="" by="" this="" proposed="" action.="" potentially,="" scallop="" vessels="" could="" also="" be="" affected="" by="" the="" closure="" areas="" in="" this="" action.="" however,="" historical="" data="" indicate="" that="" scallop="" vessels="" have="" not="" fished="" in="" the="" closed="" areas;="" therefore,="" they="" are="" unlikely="" to="" be="" affected="" by="" this="" action.="" most="" [[page="" 48117]]="" catcher="" vessels="" harvesting="" groundfish="" off="" alaska="" are="" considered="" small="" entities="" and="" would="" be="" affected="" by="" the="" trawl="" closure="" areas.="" the="" economic="" impact="" on="" small="" entities="" that="" would="" result="" from="" closures="" could="" result="" in="" a="" reduction="" in="" annual="" gross="" revenues="" by="" more="" than="" 5="" percent="" and="" would="" have="" a="" significant="" economic="" impact="" on="" a="" substantial="" number="" of="" small="" entities.="" the="" 132="" catcher="" vessels="" that="" harvested="" groundfish="" off="" alaska="" in="" 1993="" are="" considered="" small="" entities.="" that="" many="" vessels="" could="" be="" affected="" by="" the="" trawl="" closure="" areas="" and="" the="" changes="" to="" the="" zone="" 1="" red="" king="" crab="" psc="" limits,="" based="" on="" the="" best="" available="" information.="" a="" copy="" of="" this="" 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="" 679="" fisheries,="" reporting="" and="" recordkeeping="" requirements.="" dated:="" september="" 4,="" 1996.="" n.="" foster,="" deputy="" assistant="" administrator="" for="" fisheries,="" national="" marine="" fisheries="" service.="" for="" the="" reasons="" set="" out="" 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="" part="" 679="" continues="" to="" read="" as="" follows:="" authority:="" 16="" u.s.c.="" 773="" et="" seq.,="" 1801="" et="" seq.="" 2.="" in="" sec.="" 679.2,="" definitions="" of="" the="" ``nearshore="" bristol="" bay="" trawl="" closure="" area'',="" the="" ``red="" king="" crab="" savings="" area'',="" and="" the="" ``red="" king="" crab="" savings="" subarea''="" are="" added="" in="" alphabetical="" order="" to="" read="" as="" follows:="" sec.="" 679.2="" definitions.="" *="" *="" *="" *="" *="" nearshore="" bristol="" bay="" trawl="" closure="" area="" of="" the="" bsai="" (see="" sec.="" 679.22(a)(9))="" *="" *="" *="" *="" *="" red="" king="" crab="" savings="" area="" (rkcsa)="" of="" the="" bsai="" (see="" sec.="" 679.22(a)(3))="" red="" king="" crab="" savings="" subarea="" (rkcss)="" of="" the="" bsai="" (see="" sec.="" 679.21(e)(3)(ii)(b))="" *="" *="" *="" *="" *="" 3.="" in="" sec.="" 679.7,="" paragraph="" (c)(1)="" is="" removed="" and="" paragraph="" (c)(2)="" is="" redesignated="" as="" paragraph="" (c)(1),="" paragraph="" (c)(3)="" is="" redesignated="" as="" paragraph="" (c)(2)="" and="" paragraph="" (c)(4)="" is="" redesignated="" as="" paragraph="" (c)(3).="" 4.="" in="" sec.="" 679.21="" the="" heading="" of="" paragraph="" (e)(7)(vi)(a)="" and="" paragraph="" (e)(7)(vi)(a)(2)="" are="" removed,="" paragraph="" (e)(7)(vi)(a)(2)="" is="" redesignated="" as="" paragraph="" (e)(7)(vi)(a),="" paragraph="" (e)(3)(ii)(b)="" is="" redesignated="" as="" paragraph="" (e)(3)(ii)(c),="" paragraphs="" (e)(1)(i),="" (e)(6),="" (e)(7)(ii),="" (e)(7)(iii),="" are="" revised,="" and="" paragraph="" (e)(3)(ii)(b)="" is="" added="" to="" read="" as="" follows:="" sec.="" 679.21="" prohibited="" species="" bycatch="" management.="" *="" *="" *="" *="" *="" (e)*="" *="" *="" (1)="" *="" *="" *="" (i)="" red="" king="" crab="" in="" zone="" 1--the="" psc="" limit="" of="" red="" king="" crab="" caught="" by="" trawl="" vessels="" while="" engaged="" in="" directed="" fishing="" for="" groundfish="" in="" zone="" 1="" during="" any="" fishing="" year="" will="" be="" specified="" annually="" by="" nmfs,="" after="" consultation="" with="" the="" council,="" based="" on="" abundance="" and="" spawning="" biomass="" of="" red="" king="" crab="" using="" the="" criteria="" set="" out="" under="" paragraphs="" (e)(1)(i)="" (a)="" through="" (c)="" of="" this="" section.="" (a)="" when="" the="" number="" of="" mature="" female="" red="" king="" crab="" is="" at="" or="" below="" the="" threshold="" of="" 8.4="" million="" mature="" crab="" 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="" 35,000="" red="" king="" crab.="" (b)="" when="" the="" number="" of="" mature="" female="" red="" king="" crab="" is="" above="" the="" threshold="" of="" 8.4="" million="" mature="" crab="" and="" the="" effective="" spawning="" biomass="" is="" equal="" to="" or="" greater="" than="" 14.5="" but="" less="" than="" 55="" million="" lb="" (24,948="" mt),="" the="" zone="" 1="" psc="" limit="" will="" be="" 100,000="" red="" king="" crab.="" (c)="" when="" the="" number="" of="" mature="" female="" red="" king="" crab="" is="" above="" the="" threshold="" of="" 8.4="" million="" mature="" crab="" and="" the="" effective="" spawning="" biomass="" is="" equal="" to="" or="" greater="" than="" 55="" million="" lb,="" the="" zone="" 1="" psc="" limit="" will="" be="" 200,000="" red="" king="" crab.="" *="" *="" *="" *="" *="" (3)*="" *="" *="" (ii)="" *="" *="" *="" (b)="" red="" king="" crab="" savings="" subarea="" (rkcss).="" (1)="" the="" rkcss="" is="" the="" portion="" of="" the="" rkcsa="" between="" 56="" deg.="" 00'="" and="" 56="" deg.="" 10'="" n.="" lat.="" notwithstanding="" other="" provisions="" of="" this="" part,="" vessels="" using="" non-pelagic="" trawl="" gear="" in="" the="" rkcss="" may="" engage="" in="" directed="" fishing="" for="" groundfish="" in="" a="" given="" year="" if="" the="" adf&g="" had="" established="" a="" guideline="" harvest="" level="" the="" previous="" year="" for="" the="" red="" king="" crab="" fishery="" in="" the="" bristol="" bay="" area.="" (2)="" when="" the="" rkcss="" is="" open="" to="" vessels="" fishing="" for="" groundfish="" with="" non-pelagic="" trawl="" gear="" under="" paragraph="" (e)(3)(ii)(b)(1)="" of="" this="" section,="" nmfs,="" after="" consultation="" with="" the="" council,="" will="" specify="" an="" amount="" of="" the="" red="" king="" crab="" bycatch="" limit="" annually="" established="" under="" paragraph="" (e)(1)(i)="" of="" this="" section="" for="" the="" rkcss.="" the="" amount="" of="" the="" red="" king="" crab="" bycatch="" limit="" specified="" for="" the="" rkcss="" will="" not="" exceed="" an="" amount="" equivalent="" to="" 35="" percent="" of="" the="" trawl="" bycatch="" allowance="" specified="" for="" the="" rock="" sole/flathead="" sole/``other="" flatfish''="" fishery="" category="" under="" this="" paragraph="" (e)(3)="" and="" will="" be="" based="" on="" the="" need="" to="" optimize="" the="" groundfish="" harvest="" relative="" to="" red="" king="" crab="" bycatch.="" *="" *="" *="" *="" *="" (6)="" notification--(i)="" general.="" nmfs="" will="" publish="" annually="" in="" the="" federal="" register="" the="" annual="" red="" king="" crab="" psc="" limit="" and,="" if="" applicable,="" the="" amount="" of="" this="" psc="" limit="" specified="" for="" the="" rkcss,="" the="" proposed="" and="" final="" bycatch="" allowances,="" seasonal="" apportionments="" thereof,="" and="" the="" manner="" in="" which="" seasonal="" apportionments="" of="" nontrawl="" fishery="" bycatch="" allowances="" will="" be="" managed,="" as="" required="" under="" this="" paragraph="" (e).="" (ii)="" public="" comment.="" public="" comment="" will="" be="" accepted="" by="" nmfs="" on="" the="" proposed="" annual="" red="" king="" crab="" psc="" limit="" and,="" if="" applicable,="" the="" amount="" of="" this="" psc="" limit="" specified="" for="" the="" rkcss,="" the="" proposed="" and="" final="" bycatch="" allowances,="" seasonal="" apportionments="" thereof,="" and="" the="" manner="" in="" which="" seasonal="" apportionments="" of="" nontrawl="" fishery="" bycatch="" allowances="" will="" be="" managed,="" for="" a="" period="" of="" 30="" days="" from="" the="" date="" of="" publication="" in="" the="" federal="" register.="" (7)="" *="" *="" *="" (ii)="" red="" king="" crab="" or="" c.="" bairdi="" tanner="" crab,="" zone="" 1,="" closure.="" (a)="" general.="" except="" as="" provided="" in="" paragraph="" (e)(7)(i)="" of="" this="" section,="" if,="" during="" the="" fishing="" year,="" the="" regional="" director="" determines="" that="" u.s.="" fishing="" vessels="" participating="" in="" any="" of="" the="" fishery="" categories="" listed="" in="" paragraphs="" (e)(3)(iv)(b)="" through="" (f)="" of="" this="" section="" will="" catch="" the="" zone="" 1="" bycatch="" allowance,="" or="" seasonal="" apportionment="" thereof,="" of="" red="" king="" crab="" or="" c.="" bairdi="" tanner="" crab="" specified="" for="" that="" fishery="" category="" under="" paragraph="" (e)(3)="" of="" this="" section,="" nmfs="" will="" publish="" in="" the="" federal="" register="" the="" closure="" of="" zone="" 1,="" including="" the="" rkcss,="" to="" directed="" fishing="" for="" each="" species="" and/or="" species="" group="" in="" that="" fishery="" category="" for="" the="" remainder="" of="" the="" year="" or="" for="" the="" remainder="" of="" the="" season.="" (b)="" rkcss.="" if="" during="" the="" fishing="" year="" the="" regional="" director="" determines="" that="" the="" amount="" of="" the="" red="" king="" crab="" psc="" limit="" that="" is="" specified="" for="" the="" rkcss="" under="" sec.="" 679.21(e)(3)(ii)(b)="" of="" this="" section="" will="" be="" caught,="" nmfs="" will="" publish="" in="" the="" federal="" register="" the="" closure="" of="" the="" rkcss="" to="" directed="" fishing="" for="" groundfish="" with="" non-pelagic="" trawl="" gear="" for="" the="" remainder="" of="" the="" year.="" (iii)="" c.="" bairdi="" tanner="" crab,="" zone="" 2,="" closure.="" except="" as="" provided="" in="" paragraph="" (e)(7)(i)="" of="" this="" section,="" if,="" during="" the="" fishing="" year,="" the="" regional="" director="" determines="" that="" u.s.="" fishing="" vessels="" participating="" in="" any="" of="" the="" fishery="" categories="" listed="" in="" paragraphs="" [[page="" 48118]]="" (e)(3)(iv)(b)="" through="" (f)="" of="" this="" section="" will="" catch="" the="" zone="" 2="" bycatch="" allowance,="" or="" seasonal="" apportionment="" thereof,="" of="" c.="" bairdi="" tanner="" crab="" specified="" for="" that="" fishery="" category="" under="" paragraph="" (e)(3)="" of="" this="" section,="" nmfs="" will="" publish="" in="" the="" federal="" register="" the="" closure="" of="" zone="" 2="" to="" directed="" fishing="" for="" each="" species="" and/or="" species="" group="" in="" that="" fishery="" category="" for="" the="" remainder="" of="" the="" year="" or="" for="" the="" remainder="" of="" the="" season.="" *="" *="" *="" *="" *="" 5.="" in="" sec.="" 679.22,="" paragraphs="" (a)(1),="" (a)(2),="" and="" (a)(3)="" are="" revised="" and="" paragraphs="" (a)(9)="" and="" (a)(10)="" are="" added="" to="" read="" as="" follows:="" sec.="" 679.22="" closures.="" (a)="" *="" *="" *="" (1)="" zone="" 1="" (512)="" closure="" to="" trawl="" gear.="" no="" fishing="" with="" trawl="" gear="" is="" allowed="" at="" any="" time="" in="" reporting="" area="" 512="" of="" zone="" 1="" in="" the="" bering="" sea="" subarea.="" (2)="" zone="" 1="" (516)="" closure="" to="" trawl="" gear.="" no="" fishing="" with="" trawl="" gear="" is="" allowed="" at="" any="" time="" in="" reporting="" area="" 516="" of="" zone="" 1="" in="" the="" bering="" sea="" subarea="" during="" the="" period="" march="" 15="" through="" june="" 15.="" (3)="" red="" king="" crab="" savings="" area.="" directed="" fishing="" for="" groundfish="" by="" vessels="" using="" trawl="" gear="" other="" than="" pelagic="" trawl="" gear="" is="" prohibited="" at="" all="" times,="" except="" as="" provided="" at="" sec.="" 679.21(e)(3)(ii)(b)="" of="" this="" section,="" in="" that="" part="" of="" the="" bering="" sea="" subarea="" defined="" by="" straight="" lines="" connecting="" the="" following="" coordinates,="" in="" the="" order="" listed:="" latitude="" longitude="" 56="" deg.00'="" n.,="" 162="" deg.00'="" w.="" 56="" deg.00'="" n.,="" 164="" deg.00'="" w.="" 57="" deg.00'="" n.,="" 164="" deg.00'="" w.="" 57="" deg.00'="" n.,="" 162="" deg.00'="" w.="" 56="" deg.00'="" n.,="" 162="" deg.00'="" w.="" *="" *="" *="" *="" *="" (9)="" nearshore="" bristol="" bay="" trawl="" closure.="" directed="" fishing="" for="" groundfish="" by="" vessels="" using="" trawl="" gear="" in="" bristol="" bay,="" as="" described="" in="" the="" current="" edition="" of="" noaa="" chart="" 16006,="" is="" closed="" at="" all="" times="" in="" the="" area="" east="" of="" 162="" deg.00'="" w.="" long.,="" except="" that="" the="" area="" bounded="" by="" a="" straight="" line="" connecting="" the="" following="" coordinates="" in="" the="" order="" listed="" below="" is="" open="" to="" trawling="" from="" 1200="" hours="" (a.l.t.)="" april="" 1="" to="" 1200="" hours="" (a.l.t)="" june="" 15="" of="" each="" year:="" latitude="" longitude="" 58="" deg.00'n.,="" 160="" deg.00'w.="" 58="" deg.43'n.,="" 160="" deg.00'w.="" 58="" deg.43'n.,="" 159="" deg.00'w.="" 58="" deg.00'n.,="" 159="" deg.00'w.="" 58="" deg.00'n.,="" 160="" deg.00'w.="" (10)="" trawling="" is="" prohibited="" from="" august="" 1="" through="" august="" 31="" in="" the="" chum="" salmon="" savings="" area="" defined="" at="" sec.="" 679.21(e)(7)(vi)(b).="" *="" *="" *="" *="" *="" 6.="" the="" proposed="" rule="" published="" at="" 60="" fr="" 40380,="" august="" 2,="" 1996,="" proposing="" to="" amend="" 50="" cfr="" part="" 679,="" is="" further="" proposed="" to="" be="" amended="" by="" adding="" paragraphs="" (c)(1)(viii)="" and="" (c)(1)(ix)="" to="" sec.="" 679.50="" to="" read="" as="" follows:="" sec.="" 679.50="" groundfish="" observer="" program="" applicable="" through="" december="" 31,="" 1997.="" *="" *="" *="" *="" *="" (c)*="" *="" *="" (1)="" *="" *="" *="" (viii)="" red="" king="" crab="" savings="" area.="" (a)="" any="" catcher/processor="" or="" catcher="" vessel="" used="" to="" fish="" for="" groundfish="" in="" the="" red="" king="" crab="" savings="" area="" must="" carry="" a="" nmfs-certified="" observer="" during="" 100="" percent="" of="" its="" fishing="" days="" in="" which="" the="" vessel="" uses="" pelagic="" trawl="" gear,="" pot,="" jig,="" or="" longline="" gear.="" (b)="" any="" catcher/processor="" or="" catcher="" vessel="" used="" to="" fish="" for="" groundfish="" in="" the="" red="" king="" crab="" savings="" subarea="" and="" subject="" to="" this="" subarea="" being="" open="" to="" vessels="" fishing="" for="" groundfish="" with="" non-pelagic="" trawl="" gear="" under="" sec.="" 679.21(e)(3)(ii)(b)="" of="" this="" part,="" must="" carry="" a="" nmfs-certified="" observer="" during="" 100="" percent="" of="" its="" fishing="" days="" in="" which="" the="" vessel="" uses="" non-pelagic="" trawl="" gear.="" (ix)="" nearshore="" bristol="" bay="" trawl="" closure.="" any="" catcher/processor="" or="" catcher="" vessel="" used="" to="" fish="" for="" groundfish="" in="" the="" nearshore="" bristol="" bay="" trawl="" closure="" area="" must="" carry="" a="" nmfs-certified="" observer="" during="" 100="" percent="" of="" its="" fishing="" days="" in="" which="" the="" vessel="" uses="" trawl="" gear.="" *="" *="" *="" *="" *="" 7.="" in="" sec.="" 679.62,="" paragraph="" (d)="" is="" revised="" to="" read="" as="" follows:="" sec.="" 679.62="" general="" limitations.="" *="" *="" *="" *="" *="" (d)="" closed="" areas.="" it="" is="" unlawful="" for="" any="" person="" to="" dredge="" for="" scallops="" in="" any="" federal="" waters="" off="" alaska="" that="" are="" closed="" to="" fishing="" with="" trawl="" gear="" or="" non-pelagic="" trawl="" gear="" under="" sec.="" 679.22(a)(1)(i),="" (a)(2)(i),="" (a)(3),="" (a)(4),="" (a)(6),="" (a)(7),="" (a)(9),="" and="" (b).="" [fr="" doc.="" 96-23039="" filed="" 9-9-96;="" 11:40="" am]="" billing="" code="" 3510-22-f="">