[Federal Register Volume 59, Number 164 (Thursday, August 25, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-20730]


[[Page Unknown]]

[Federal Register: August 25, 1994]


=======================================================================
-----------------------------------------------------------------------

DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

50 CFR Parts 204 and 642

[Docket No. 940553-4223; I.D. 050394A]
RIN 0648-AE98

 

Coastal Migratory Pelagic Resources of the Gulf of Mexico and 
South Atlantic

AGENCY: National Marine Fisheries Service (NMFS), National Oceanic and 
Atmospheric Administration (NOAA), Commerce.

ACTION: Final rule.

-----------------------------------------------------------------------

SUMMARY: NMFS issues this final rule to implement Amendment 7 to the 
Fishery Management Plan for the Coastal Migratory Pelagic Resources of 
the Gulf of Mexico and South Atlantic (FMP). Amendment 7 divides the 
eastern zone commercial quota for the Gulf migratory group of king 
mackerel into equal quotas for the Florida east and west coast 
fisheries, further divides the quota for the west coast sub-zone into 
equal quotas for hook-and-line and run-around gillnet harvesters, and 
allows persons to fish under the gillnet quota in the west coast sub-
zone only aboard vessels that have endorsements on their Federal 
commercial mackerel permits to fish with gillnets in that sub-zone. The 
intended effect of this rule is to allocate equitably the eastern zone 
commercial quota among users and avoid the negative social and economic 
emergencies related to a recent, disproportionately large, west coast 
harvest in the commercial fishery for Gulf group king mackerel off 
Florida. This rule also informs the public of the approval by the 
Office of Management and Budget (OMB) of a collection-of-information 
requirement contained in this rule and publishes the OMB control number 
for that collection.

EFFECTIVE DATE: September 23, 1994, except that the amendment to 
Sec. 204.1(b) is effective August 24, 1994; Sec. 642.4(m) is effective 
August 24, 1994, except for Sec. 642.4(m)(4), which is effective August 
24, 1994, through October 31, 1994; and Secs. 642.7(t), (u), and (v) 
and 642.28(b)(2) are effective November 1, 1994.

ADDRESSES: Requests for copies of the final regulatory flexibility 
analysis (FRFA) may be sent to: Southeast Regional Office, NMFS, 9721 
Executive Center Drive, St. Petersburg, FL 33702.

FOR FURTHER INFORMATION CONTACT: Mark F. Godcharles, 813-570-5305.

SUPPLEMENTARY INFORMATION: The fishery for coastal migratory pelagic 
resources (king mackerel, Spanish mackerel, cero, cobia, little tunny, 
dolphin, and, in the Gulf of Mexico only, bluefish) is managed under 
the FMP. The FMP was prepared by the Gulf of Mexico and South Atlantic 
Fishery Management Councils (Councils) and is implemented through 
regulations at 50 CFR part 642 under the authority of the Magnuson 
Fishery Conservation and Management Act (Magnuson Act).
    The background and rationale for the measures in Amendment 7 were 
included in the proposed rule (59 FR 28330, June 1, 1994) and are not 
repeated here.

Comments and Responses

    Four letters were received during the comment period in response to 
the proposed rule. The Gulf of Mexico Fishery Management Council (Gulf 
Council) submitted a comment regarding the proposed regulations. Two 
letters from a commercial fishermen's organization expressed opposition 
to the 50/50 allocation of the eastern zone commercial quota of Gulf 
group king mackerel between Florida's east and west coast fisheries. 
The fourth comment received from the Chief Counsel for Advocacy, Small 
Business Administration (SBA) indicated that the initial regulatory 
flexibility analysis (IRFA) prepared for Amendment 7 does not comply 
with the Regulatory Flexibility Act (RFA) because it failed to contain 
an examination of other alternatives as required by the RFA. Specific 
comments and NMFS responses are listed below.
    Comment: The Gulf Council expressed concern that the regulatory 
language contained in the proposed rule would not effectively prevent 
gillnet vessels operating in the west coast sub-zone from additionally 
harvesting Gulf group king mackerel under the hook-and-line quota.
    Response: NMFS concurs with this concern and has ensured that the 
final rule language clearly prohibits gillnet vessels from fishing for 
Gulf group king mackerel in the west coast sub-zone with gear other 
than a gillnet. The final rule is intended to prevent gillnet vessels 
from landing king mackerel under both quotas and to be consistent with 
the provisions of Amendment 7.
    Under the final rule, king mackerel may be possessed or landed from 
a vessel that uses, or has aboard, a run-around gillnet, only when it 
possesses a Federal commercial mackerel permit with a gillnet 
endorsement. King mackerel landed from such a vessel will be counted 
only against the gillnet quota, while those landed by vessels not 
having a gillnet endorsement will be counted against the hook-and-line 
quota. Monitoring of mackerel landings by gear type is feasible and 
will be utilized during the 1994-95 winter season for this fishery. 
Accuracy in monitoring catches by gear type of this fishery is expected 
to be similar to that achieved through other quota monitoring programs.
    As in those programs, success in limiting catches to quotas will be 
highly dependent on the good faith and cooperation of the fishing 
industry, and the ability of NMFS to close the fishery in a timely 
manner.
    Comment: Two letters received from commercial fishermen objected to 
the proposed 50/50 split of the eastern zone commercial quota for Gulf 
group king mackerel between Florida's east and west coast fisheries. 
They preferred an alternative allocation, considered and rejected by 
the Council, that would establish a 56/44 west/east coast division of 
the quota, as depicted in Table 1 of Amendment 7. This allocation 
occurred during the period from the 1985-86 season through the 1992-93 
season under quota management initiated with FMP Amendment 1. These 
commenters contended that actions taken by the Gulf Council in its 
decision to support the 50/50 west/east split of the quota were 
inconsistent with the Magnuson Act. Specifically, they argued that the 
Councils' decision was not based on the best available scientific 
information and that reasonable opportunity was not provided for 
interested parties to review and comment on the new data used by the 
Council as a basis for its final decision.
    Response: NMFS has reviewed the Councils' proposed equal allocation 
between Florida's east and west coast fisheries and has determined that 
this allocation is consistent with the national standards and other 
provisions of the Magnuson Act and other applicable law. NMFS believes 
that the Councils' decision was based on many factors as discussed in 
Amendment 7, and that the Councils were not obliged to be guided solely 
by historical landing percentages for each sub-zone.
    Equal (50/50) apportionment of the eastern zone commercial quota 
for Gulf group king mackerel between Florida's east and west coasts has 
historical precedence and acceptance. Continuation of the State/Federal 
management regime for Florida's commercial fishery for Gulf group king 
mackerel appears to be supported by most affected fishermen from both 
coasts. Amendment 7's delineation of east and west coast sub-zones and 
establishment of equal quotas for each area is similar to management 
provided by Florida regulations during the 1990-91 and 1991-92 seasons, 
vacated during the 1992-93 fishing year, and resumed for the 1993-94 
fishing year under a Federal emergency interim rule (58 FR 51789, 
October 5, 1993).
    Withdrawal of enforcement of Florida regulations during the 1992-93 
season in response to a Federal court ruling resulted in 
disproportionate sharing of the eastern zone commercial quota of Gulf 
group king mackerel among east and west coast fishermen. To remedy 
socioeconomic hardships resultant from record low east coast catches, 
an emergency supplemental allocation of 259,000 lb (117,480 kg) was 
granted to Florida east coast fishermen (58 FR 10990, February 23, 
1993). This final rule implementing Amendment 7 is intended to address 
permanently the fishery conditions that required previous emergency 
regulatory action.
    NMFS disagrees with the contention that the Councils' decision was 
not based on the best available information. The Councils considered 
several apportionment ratios for the east coast-west coast allocation, 
including the preferred alternative, based on the best scientific 
information available. The Councils concluded, and NMFS concurs, that 
the 50/50 apportionment is supported by the best available information. 
Also, the NMFS Science and Research Director, Southeast Fisheries 
Science Center, has certified that the scientific information contained 
in Amendment 7 is the best available.
    NMFS also does not agree that insufficient time was allowed for 
public review and comment on alleged new data presented to and 
considered by the Gulf Council at its March 1994 meeting when it voted 
to support the 50/50 west/east coast allocation. Representatives of the 
South Atlantic Council presented landings data to the Gulf Council, 
although in a different form, that had already been the subject of 
public review and comment and were part of the public record for a 
substantial period of time prior to the meeting. The same data 
presented to and considered by the Gulf Council at its meeting were 
available previously to the public as monthly landings from the Florida 
Department of Environmental Protection, NMFS, and the Councils. 
Reliable landings estimates of the most recent fishing year (1992-93 
season) were available to the public by mid-1993, 7 to 8 months before 
the Gulf Council's March 1994 meeting.
    Comment: The SBA commented that the IRFA does not comply with the 
RFA because it fails to contain an examination of other management 
alternatives as required by the RFA. Specifically, SBA indicated that 
the IRFA did not include an examination of alternatives that might 
further protect and enhance the coastal migratory pelagic fisheries of 
the Gulf of Mexico without unduly burdening small businesses.
    Response: NMFS concurs. Consequently, NMFS has included such 
analyses in the FRFA.

Changes From the Proposed Rule

    In Sec. 642.2, the address in the definition of ``Regional 
Director'' is corrected.
    In Sec. 642.4(m)(4), the proposed rule specified that initial 
requests for gillnet endorsements on vessel permits must be postmarked 
or hand delivered ``during the 45-day period commencing on the first 
day of effectiveness of the final rule implementing this measure.'' In 
this final rule, the quoted language is replaced with, ``not later than 
October 31, 1994.'' Advance notification has been given to the limited 
number of fishermen affected by this new requirement for gillnet 
endorsements. Accordingly, NMFS believes that the cutoff date of 
October 31 provides fishermen with adequate time to submit requests for 
endorsements.
    As discussed above, a measure and related prohibition are added at 
Secs. 642.28(b)(2)(iii) and 642.7(u), respectively, to allow vessels 
with gillnet endorsements to retain king mackerel in or from the EEZ in 
the Florida west coast sub-zone only when harvested with run-around 
gillnet gear.

Additional Changes Proposed

    Under the FMP's framework procedure for adjusting management 
measures, the Councils have proposed changes in the total allowable 
catch for the Atlantic groups of king and Spanish mackerel and changes 
in the commercial trip limits for Gulf group king mackerel in the 
eastern zone. Preliminary notice of these changes was published on 
August 9, 1994 (59 FR 40509).

Effective Dates

    The gillnet endorsement procedural requirements (Sec. 642.4(m)) and 
incorporation of the OMB approval number for the collection-of-
information requirement associated with applications for gillnet 
endorsements in the table of OMB Control Numbers for NOAA Information 
Collection Requirements (Sec. 204.1(b)) are made effective immediately 
in that they are not substantive rules subject to a delay in effective 
date under section 553(d) of the Administrative Procedure Act.
    The provisions for the initial applications for gillnet 
endorsements, contained in Sec. 642.4(m)(4), are temporary. Therefore, 
that paragraph is effective only through October 31, 1994.
    The provisions of new Sec. 642.28(b)(2), which depend on the 
presence or absence of a gillnet endorsement on a vessel permit, and 
the related prohibitions at Sec. 642.7(t), (u), and (v), are not 
effective until November 1, 1994. This will allow sufficient time for 
fishermen to submit requests for gillnet endorsements and for NMFS to 
process and issue them.

Classification

    The Regional Director determined that Amendment 7 is necessary for 
the conservation and management of the fishery for coastal migratory 
pelagic resources and that it is consistent with the Magnuson Act and 
other applicable law.
    This final rule has been determined to be not significant for 
purposes of E.O. 12866.
    The Councils prepared an IRFA as part of Amendment 7, which 
concluded that this rule may have a significant economic impact on a 
substantial number of small entities. In response to a comment from the 
SBA, NMFS prepared an FRFA that provides additional analysis of the 
effects of management alternatives on small businesses; the FRFA 
supports the same conclusions regarding significant economic impacts as 
were reached by the IRFA. A copy of the FRFA is available from the 
Councils (or NMFS) (see ADDRESSES).
    This final rule contains a collection-of-information requirement 
subject to the Paperwork Reduction Act-- specifically, applications for 
gillnet endorsements on vessel permits. This collection of information 
has been approved by OMB under OMB control number 0648-0205. The public 
reporting burden for this collection of information is estimated to 
average 30 minutes per response, including the time for reviewing 
instructions, searching existing data sources, gathering and 
maintaining the data needed, and completing and reviewing the 
collections of information. Send comments regarding this burden 
estimate or any other aspect of the collection of information, 
including suggestions for reducing the burden, to Edward E. Burgess, 
NMFS, 9721 Executive Center Drive, St. Petersburg, FL 33702 and to the 
Office of Information and Regulatory Affairs, OMB, Washington, DC 20503 
(Attention: NOAA Desk Officer).

List of Subjects

50 CFR Part 204

    Reporting and recordkeeping requirements.

50 CFR Part 642

    Fisheries, Fishing, Reporting and recordkeeping requirements.

    Dated: August 18, 1994.
Gary C. Matlock,
Program Management Officer, National Marine Fisheries Service.

    For the reasons set out in the preamble, 50 CFR parts 204 and 642 
are amended as follows:

PART 204--OMB CONTROL NUMBERS FOR NOAA INFORMATION COLLECTION 
REQUIREMENTS

    1. The authority citation for part 204 continues to read as 
follows:

    Authority: Paperwork Reduction Act of 1980, 44 U.S.C. 3501-3520 
(1982).


Sec. 204.1  [Amended]

    2. In Sec. 204.1(b), the table is amended by adding in numerical 
order, the entry ``Sec. 642.4(m)'', in the first column and the control 
number ``-0205'' in the second column.

PART 642--COASTAL MIGRATORY PELAGIC RESOURCES OF THE GULF OF MEXICO 
AND SOUTH ATLANTIC

    3. The authority citation for part 642 continues to read as 
follows:

    Authority: 16 U.S.C. 1801 et seq.

    4. In Sec. 642.2, the definition of Regional Director is revised to 
read as follows:


Sec. 642.2  Definitions.

* * * * *
    Regional Director means the Director, Southeast Region, NMFS, 9721 
Executive Center Drive, St. Petersburg, FL 33702, telephone 813-570-
5301; or a designee.
* * * * *
    5. In Sec. 642.4, new paragraph (m) is added to read as follows:


Sec. 642.4  Permits and fees.

* * * * *
    (m) Gillnet endorsement. (1) For a vessel to use a run-around 
gillnet for king mackerel in the Florida west coast sub-zone (see 
Sec. 642.25(a)(1)(i)(B)), a vessel for which a king and Spanish 
mackerel permit has been issued pursuant to this section must have a 
gillnet endorsement on such permit and such permit and endorsement must 
be on board the vessel.
    (2) An owner of a permitted vessel may add or delete a gillnet 
endorsement on a permit by returning to the Regional Director the 
vessel's existing permit with a written request for addition or 
deletion of the gillnet endorsement. Such request must be postmarked or 
hand delivered during June, each year.
    (3) A gillnet endorsement may not be added or deleted from July 1 
through May 31 each year, any renewal of the permit during that period 
notwithstanding. From July 1 through May 31, a permitted vessel that is 
sold, if permitted by the new owner for king and Spanish mackerel, will 
receive a permit with or without the endorsement as was the case for 
the vessel under the previous owner. From July 1 through May 31, the 
initial king and Spanish mackerel permit issued for a vessel new to the 
fishery will be issued without a gillnet endorsement.
    (4) The provisions of paragraphs (m)(2) and (m)(3) of this section 
notwithstanding, the initial requests for gillnet endorsements must be 
postmarked or hand delivered not later than October 31, 1994.
    6. In Sec. 642.7, paragraph (p) is revised, paragraphs (s) and (u) 
are removed, paragraph (t) is redesignated as paragraph (x), and new 
paragraphs (s) through (w) are added to read as follows:


Sec. 642.7  Prohibitions.

* * * * *
    (p) After a closure specified in Sec. 642.26(a), sell, purchase, 
trade, or barter, or attempt to sell, purchase, trade, or barter a king 
or Spanish mackerel of the closed species/ migratory group/zone/sub-
zone/gear type, as specified in Secs. 642.22(c), 642.24(a)(4), and 
642.26(b)(3).
* * * * *
    (s) In the eastern zone, possess or land Gulf group king mackerel 
in or from the EEZ in excess of an applicable trip limit, as specified 
in Sec. 642.28(a) or Sec. 642.28(b)(1)(ii), or transfer at sea such 
king mackerel, as specified in Sec. 642.28(e).
    (t) In the Florida west coast sub-zone, possess or land Gulf group 
king mackerel in or from the EEZ aboard a vessel that uses or has 
aboard a run-around gillnet on a trip when such vessel does not have on 
board a commercial permit for king and Spanish mackerel with a gillnet 
endorsement, as specified in Sec. 642.28(b)(2)(i).
    (u) In the Florida west coast sub-zone, aboard a vessel for which a 
commercial permit for king and Spanish mackerel with a gillnet 
endorsement has been issued, retain Gulf group king mackerel in or from 
the EEZ harvested with gear other than run-around gillnet, as specified 
in Sec. 642.28(b)(2)(iii).
    (v) In the Florida west coast sub-zone, transfer at sea Gulf group 
king mackerel taken by a vessel for which a commercial permit for king 
and Spanish mackerel with a gillnet endorsement has been issued, as 
specified in Sec. 642.28(e).
    (w) Violate any prohibitions or restrictions for the prevention of 
gear conflicts that may be specified in accordance with Sec. 642.29.
* * * * *
    7. In Sec. 642.25, paragraph (c) is removed and paragraphs (a)(1) 
introductory text and (a)(1)(i) are revised to read as follows:


Sec. 642.25  Commercial allocations and quotas.

* * * * *
    (a) * * *
    (1) The commercial allocation for the Gulf migratory group of king 
mackerel is 2.50 million pounds (1.13 million kg) per fishing year. The 
Gulf migratory group is divided into eastern and western zones 
separated by a line extending directly south from the Alabama/Florida 
boundary (87 deg.31'06'' W. long.) to the outer limit of the EEZ. 
Quotas for the eastern and western zones are as follows:
    (i) 1.73 million pounds (0.78 million kg) for the eastern zone, 
which is further divided into quotas as follows:
    (A) 865,000 pounds (392,357 kg) for the Florida east coast sub-
zone, which is that part of the eastern zone north of a line extending 
directly east from the Dade/Monroe County, Florida boundary 
(25 deg.20.4' N. lat.); and
    (B) 865,000 pounds (392,357 kg) for the Florida west coast sub-
zone, which is that part of the eastern zone south and west of the 
Dade/Monroe County, Florida boundary (25 deg.20.4' N. lat.), which is 
further divided into quotas by gear types as follows:
    (1) 432,500 pounds (196,179 kg) for vessels fishing with hook-and-
line gear; and
    (2) 432,500 pounds (196,179 kg) for vessels fishing with run-around 
gillnets.
* * * * *
    8. Section 642.26 is revised to read as follows:


Sec. 642.26  Closures.

    (a) Notice of closure. The Assistant Administrator, by filing a 
notice with the Office of the Federal Register, will close the 
commercial fishery in the EEZ for king mackerel from a particular 
migratory group, zone, sub-zone, or gear type, and for Spanish mackerel 
from the Gulf migratory group, when the allocation or quota under 
Sec. 642.25(a) or Sec. 642.25(b)(1) for that migratory group, zone, 
sub-zone, or gear type has been reached or is projected to be reached. 
The commercial fishery for Atlantic group Spanish mackerel is managed 
under the commercial trip limits specified in Sec. 642.27 in lieu of 
the closure provisions of this section.
    (b) Fishing after a closure. On and after the effective date of a 
closure invoked under paragraph (a) of this section, for the remainder 
of the appropriate fishing year for commercial allocations specified in 
Sec. 642.20(a):
    (1) A person aboard a vessel in the commercial fishery may not fish 
for king or Spanish mackerel in the EEZ or retain fish in or from the 
EEZ under a bag limit specified in Sec. 642.24(a)(1) for the closed 
species, migratory group, zone, sub-zone, or gear type, except as 
provided for under paragraph (b)(2) of this section.
    (2) A person aboard a vessel for which the permit indicates both 
commercial king and Spanish mackerel and charter vessel for coastal 
migratory pelagic fish may continue to retain fish under a bag and 
possession limit specified in Sec. 642.24 (a)(1) and (a)(2) provided 
the vessel is operating as a charter vessel.
    (3) The sale, purchase, trade, or barter or attempted sale, 
purchase, trade, or barter of king or Spanish mackerel of the closed 
species, migratory group, zone, sub-zone, or gear type is prohibited. 
This prohibition does not apply to trade in king or Spanish mackerel 
harvested, landed, and sold, traded, or bartered prior to the closure 
and held in cold storage by dealers or processors.


Sec. 642.31  [Removed]


Secs. 642.28 through 642.30  [Redesignated as Secs. 642.29 through 
642.31]

    9. Section 642.31 is removed; Secs. 642.28 through 642.30 are 
redesignated as Secs. 642.29 through 642.31, respectively; and new 
Sec. 642.28 is added to read as follows:


Sec. 642.28  Additional limitations for Gulf group king mackerel in the 
eastern zone.

    (a) Florida east coast sub-zone. In the Florida east coast sub-
zone, king mackerel in or from the EEZ may be possessed aboard or 
landed from a vessel for which a commercial permit has been issued for 
king and Spanish mackerel under Sec. 642.4:
    (1) From November 1, each fishing year, until 50 percent of the 
sub-zone's fishing year quota of king mackerel has been harvested--in 
amounts not exceeding 50 king mackerel per day; and
    (2) From the date that 50 percent of the sub-zone's fishing year 
quota of king mackerel has been harvested until a closure of the 
Florida east coast sub-zone has been effected under Sec. 642.26--in 
amounts not exceeding 25 king mackerel per day.
    (b) Florida west coast sub-zone. (1) In the Florida west coast sub-
zone, king mackerel in or from the EEZ may be possessed aboard or 
landed from a vessel for which a commercial permit has been issued for 
king and Spanish mackerel under Sec. 642.4:
    (i) From July 1, 1994, until 75 percent of the sub-zone's fishing 
year quota of king mackerel has been harvested--in unlimited amounts of 
king mackerel; and
    (ii) From the date that 75 percent of the sub-zone's fishing year 
quota of king mackerel has been harvested until a closure of the 
Florida west coast sub-zone has been effected under Sec. 642.26--in 
amounts not exceeding 50 king mackerel per day.
    (2) In the Florida west coast sub-zone:
    (i) King mackerel in or from the EEZ may be possessed aboard or 
landed from a vessel that uses or has aboard a run-around gillnet on a 
trip only when such vessel has on board a commercial permit for king 
and Spanish mackerel with a gillnet endorsement;
    (ii) King mackerel from the west coast sub-zone landed by a vessel 
for which such commercial permit with endorsement has been issued will 
be counted against the run-around gillnet quota of 
Sec. 642.25(a)(1)(i)(B)(2); and
    (iii) Aboard a vessel for which such commercial permit with 
endorsement has been issued, king mackerel in or from the EEZ harvested 
with gear other than run-around gillnet may not be retained.
    (c) Notice of trip limit changes. The Assistant Administrator, by 
filing a notice with the Office of the Federal Register, will effect 
the trip limit changes specified in paragraphs (a) and (b)(1)(ii) of 
this section when the requisite harvest levels have been reached or are 
projected to be reached.
    (d) Combination of trip limits. A person who fishes in the EEZ may 
not combine a trip limit of this section with any trip or possession 
limit applicable to state waters.
    (e) Transfer at sea. A person for whom a trip limit specified in 
paragraph (a) or (b)(1)(ii) of this section or a gear limitation 
specified in paragraph (b)(2) of this section applies may not transfer 
at sea from one vessel to another a king mackerel:
    (1) Taken in the EEZ, regardless of where such transfer takes 
place; or
    (2) In the EEZ, regardless of where such king mackerel was taken.

[FR Doc. 94-20730 Filed 8-24-94; 8:45 am]
BILLING CODE 3510-32-W