[Federal Register Volume 60, Number 174 (Friday, September 8, 1995)]
[Rules and Regulations]
[Pages 46775-46779]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-22238]



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DEPARTMENT OF COMMERCE
50 CFR Part 630

[Docket No. 950522139-5219-02; I.D. 042495B]
RIN 0648-AH75


Atlantic Swordfish Fishery; Quotas and Closure of Directed 
Fishery

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

ACTION: Interim and final rule; Annual quotas and closure; request for 
comments.

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SUMMARY: By final rule, NMFS amends the regulations governing the 
Atlantic swordfish fishery by: 1) Reducing the total allowable catch 
(TAC) to 2,984 metric tons (mt); 2) increasing the swordfish bycatch 
limit to 15 fish for longline vessels when the directed longline 
swordfish fishery is closed; 3) providing authority for NMFS to modify 
the bycatch limit; 4) increasing the minimum notice of a closure to 14 
days; and 5) reducing the minimum days allowed for the public comment 
on proposed quota adjustments to 30 days. By interim rule, NMFS amends 
the regulations to establish a 1996 trip limit of 31,600 pounds (lb) 
(14,334 kg) dressed weight of swordfish. The intent of this action is 
to protect the swordfish resource while allowing harvests of swordfish 
consistent with the recommendations of the International Commission for 
the Conservation of Atlantic Tunas (ICCAT) and to provide authority to 
NMFS to make adjustments to the trip limits. NMFS also announces a 
closure of the directed swordfish fishery for longliners.

DATES: Effective September 8, 1995. The closure for the directed 
longline fishery for swordfish is effective from 12 noon on October 31, 
1995 through 11:59 p.m. December 31, 1995.
    Comments on the 1996 trip limits must be submitted by November 1, 
1995, and will be considered in establishing final trip limits.

ADDRESSES: Copies of an Environmental Assessment/Regulatory Impact 
Review (EA/RIR) supporting this action may be obtained from Richard B. 
Stone, Chief, Highly Migratory Species Management Division, Office of 
Fisheries Conservation and Management, National Marine Fisheries 
Service, 1315 East-West Highway, Silver Spring, MD 20910. Comments on 
the interim rule for trip limits should be sent to the same address.

FOR FURTHER INFORMATION CONTACT: Ronald G. Rinaldo or Rebecca Lent, 
301-713-2347, fax 301-713-0596.

SUPPLEMENTARY INFORMATION: The Atlantic swordfish fishery is managed 
under the Fishery Management Plan for Atlantic Swordfish and its 
implementing regulations at 50 CFR part 630 under the authority of the 
Magnuson Fishery Conservation and Management Act (16 U.S.C. 1801 et 
seq.) (Magnuson Act) and the Atlantic Tunas Convention Act (ATCA) (16 
U.S.C. 971 et seq.). Regulations issued under the authority of ATCA 
carry out the recommendations of ICCAT.
    Background information about the need for revisions to the 
regulations governing the Atlantic swordfish fishery was provided in 
the notice of proposed rulemaking (60 FR 29543, June 5, 1995) and is 
not repeated here.
    These regulatory changes will improve NMFS' ability to implement 
the ICCAT recommendations and further the management objectives for the 
Atlantic swordfish fishery. NMFS has re-evaluated the annual TAC, the 
annual directed-fishery quota, the annual bycatch quota, bycatch limits 
in the non-directed fishery, and the harpoon gear set-aside quotas in 
the Atlantic swordfish fishery in accordance with the procedures and 
factors specified in 50 CFR 630.24(d), including consideration of the 
latest stock assessment and recommendations of ICCAT. The final 
regulations are summarized as follows:

1. Total Allowable Catch (TAC)

    NMFS is decreasing the annual TAC by 449 mt to 2,984 mt. All 
weights are in dressed weight of swordfish, unless indicated otherwise. 
The TAC is divided between a directed-fishery quota of 2,730 mt and a 
bycatch quota of 254 mt. The directed-fishery quota is divided into two 
1,365 mt semiannual quotas for each of the 6-month periods, January 1 
through June 30, and July 1 through December 31. Each of the 1,365 mt 
semiannual quotas is further subdivided into a drift gillnet quota of

[[Page 46776]]

27 mt and a longline and harpoon quota of 1,338 mt. This allocation by 
gear types employs the same percentages that were in effect in 1994.
    NMFS estimates that approximately 113 mt of swordfish semiannually 
will be discarded dead, based on estimates from 1992 and 1993, recent 
estimated rates of discards, and expected improvement by the fleet in 
avoiding small fish. Therefore, the semiannual landing quota for the 
longline and harpoon swordfish fishery is the semiannual catch quota of 
1,338 mt minus the estimated semiannual dead discards of 113 mt, or 
1,225 mt for each of the two semiannual periods.
    Following a closure of the directed longline fishery, any 
overharvest or underharvest will be added or subtracted, respectively, 
to the bycatch reserve of 254 mt. The ability to add or subtract 
underage or overage ensures that the United States will abide by ICCAT 
quotas while meeting the requirement under ATCA to provide U.S. 
fishermen with a reasonable opportunity to harvest their full quota.
    NMFS has no new information sufficient to justify changes in the 
existing 10 mt special set-aside quota for harpoon gear.

2. Swordfish Bycatch in the Non-Directed Fishery

    There are no new data or analyses that indicate a need for revision 
to the existing bycatch limits of five swordfish per trip in the squid 
trawl fishery and two swordfish per trip for all other bycatch 
fisheries, except the non-directed season in the longline fleet for 
1995. Data analyzed by NMFS on longline vessels not directing at 
swordfish indicate that an increased bycatch limit of 15 swordfish per 
vessel trip would minimize the discards for 75 percent of the trips in 
6 of the 7 fishing areas analyzed, without exceeding the bycatch 
reserve. Therefore, a bycatch limit of 15 fish per trip is established 
for longline vessels during the non-directed fishing season. This 
bycatch limit is based, in part, on the estimated period of time during 
which the directed fishery will be closed. The rule authorizes the 
Assistant Administrator for Fisheries, NOAA (AA) to modify the bycatch 
limits based upon the estimated period of time that the directed 
fishery is closed as well as the swordfish bycatch in the non-directed 
fishery.

3. Trip Limits

    The reduced TAC and additional fishing capacity in the 1996 
swordfish fishery will likely result in early closure of the directed 
fishery, resulting in economic disruption and hardship to the fleet. 
NMFS solicited comments on measures to extend the fishing season, 
including possible trip limits. The interim rule imposes a trip limit 
for swordfish for permitted longline commercial fishing vessels, and 
authorizes the AA to make adjustments in the management measures in 
order to achieve Atlantic swordfish management objectives. These 
adjustments may include changes in commercial trip limits. Under the 
interim trip limit, permitted longline vessels may harvest and possess 
up to 31,600 lb (14,334 kg) of swordfish per trip in 1996. This trip 
limit is based on the maximum catch of 90 percent of the trips in the 
Grand Banks (distant-water) fishing trips in 1992 and 1993. Trip limits 
are not defined by vessel type due to the difficulty of classifying 
distant-water versus coastal-water vessels. NMFS is soliciting further 
comments and suggestions from industry on how to clearly classify and 
monitor trip limits by vessel type and/or area fished.
    Implementation of this trip limit for permitted vessels is intended 
to lower total daily landings, extend the open season, reduce the 
possibility that the semiannual quota will be exceeded, and reduce the 
waste, economic disruption and safety problems associated with a derby-
style fishery.

4. Other

    This rule reduces the minimum number of days allowed for public 
comment on proposed adjustments to the annual quota from 45 to 30. This 
reduction is intended to help expedite the rulemaking process for the 
swordfish fishery, particularly given the relatively brief period 
between the ICCAT recommendations and the commencement of the fishing 
season. NMFS also requests comments on whether the fishing year should 
be changed from January through December to July through June. Such a 
change would allow NMFS to implement ICCAT recommendations prior to the 
start of the fishing year.
    This rule also changes the address of the Director, NMFS Southeast 
Region, whose office has moved.
    Finally, this rule increases the minimum notice required for a 
closure from 8 days to 14 days, due to the difficulty for distant water 
vessels to return to port and offload within 8 days. Thus, a vessel 
will have a minimum of 14 days to return to port and offload.

Comments and Responses

1. ICCAT Quota Recommendations

     Comment: Many fishery participants stated their concern over the 
country swordfish quotas set by ICCAT for 1995 and 1996. Some 
commenters suggested that the total quota was set too high to allow for 
stock recovery, while others indicated that the 1996 U.S. quota should 
be renegotiated, so that countries that did not comply with previous 
ICCAT recommendations would be penalized. The 1994 underage should be 
added to the 1995 quota.
    Response: NMFS agrees that the total swordfish quota for the North 
Atlantic may not ensure stock recovery. The swordfish stock assessment 
will be reviewed at the 1995 meeting of the Scientific and Statistical 
Committee of ICCAT. Pending this review, NMFS is obligated under ATCA 
to implement the ICCAT-recommended quotas. The issue of renegotiating 
the U.S. quota at ICCAT is beyond the scope of this rulemaking. NMFS 
agrees that overage/underage is a useful concept that should be 
discussed at the 1995 ICCAT meeting for future implementation.

2. June-July Application of Total Allowable Catch (TAC)

    Comment: Some commenters suggested that quotas be applied on a 
July-June basis rather than calendar-year basis.
    Response: The United States will discuss this issue at ICCAT and 
NMFS is seeking additional comment from the public on this issue.

3. Measures to Extend the Fishing Season

    Comment: NMFS solicited and received numerous suggestions regarding 
methods to extend the fishing season. Several suggestions were made for 
extending the fishing season, given the reduced TAC for 1995 and 1996 
and the increased fishing capacity due to the return of highliners that 
had left the Atlantic over the past 4 years to operate in the Pacific. 
These suggestions included trip limits, seasonal closure of the 
directed fishery, and establishment of set-aside quotas; the bulk of 
these were to be applied by vessel size, operation (distant-water 
versus coastal-water), or by region. There was considerable concern 
that the landings of larger, distant-water vessels would result in a 
closure of the fishery, with detrimental effects on smaller operators 
that provide year-round fresh and high-quality fish. Others were 
concerned that whatever is done be done equitably and not to the 
detriment of the distant water fleet or fishermen in northern areas. 
Some commenters suggested that NMFS classify the vessels according to 
individual fishing records.
    Response: NMFS agrees that the reduced TAC and the additional 
fishing 

[[Page 46777]]
capacity will result in early closure of the directed fishery, 
resulting in economic disruption and hardship to the fleet. The interim 
rule establishes a limit of 31,600 lb (14,334 kg) of swordfish per trip 
for 1996 for all vessels in all regions. The difficulty of classifying 
distant-water vs. coastal-water vessels and of enforcing different trip 
limits for them requires the establishment of one trip limit at this 
time. There is insufficient analysis to enable classification based on 
an individual vessel's past performance. The trip limit is based on 90 
percent of the trips taken in the Grand Banks (distant-water) fishery 
in 1992 and 1993. The trip limit should extend the season while 
affecting only the larger, distant-water vessels, rather than the 
smaller, inshore boats that take shorter trips. NMFS will continue to 
analyze appropriate trip limits for smaller vessels and vessels in 
other geographical regions to determine equitable limits for all 
vessels. NMFS will consider comments and suggestions from the industry, 
particularly with regards to methods for clearly distinguishing 
distant-water versus smaller, inshore vessels, in promulgating final 
trip limits for 1996.

4. Swordfish Bycatch in the Non-directed Fishery

    Comment: NMFS solicited and received numerous comments on revisions 
of the longline bycatch limit during closure of the directed longline 
fishery. Commenters indicated that the catch limit during closure of 
the directed swordfish fishery should be reviewed in order to minimize 
the waste from dead discards and to minimize the economic disruption 
and hardship caused by the closure of the directed fishery.
    Response: NMFS agrees that the bycatch limit warrants revision 
given the high probability of a closure under a reduced TAC and 
increased fishing capacity. The final rule establishes a bycatch limit 
for longliners of 15 swordfish per trip during the non-directed fishing 
season. This limit is based on analysis of catch data for longline 
vessels not targeting swordfish. Bycatch by other gear types remains at 
the current levels.

5. Undersized Swordfish Discards

    Comment: There were numerous comments regarding dead discards of 
undersized swordfish. Some commenters indicated that it may be possible 
to reduce undersized bycatch through area and season closures, and 
possibly gear modifications, including the use of size-selective gear-
types such as harpoons. Comments were made regarding the Second Harvest 
Program; some feel the program should be implemented while others are 
concerned about the possible problems due to lack of observers and tax-
saving incentives.
    Response: NMFS continues to support research and analysis that 
would provide information on how to reduce the catch of undersized 
swordfish. This reduction is increasingly critical given the reduced 
TAC and increased fishing capacity. NMFS believes that this issue 
should be addressed at ICCAT and will raise the issue at the ICCAT 
Advisory Committee meeting. Regarding Second Harvest, NMFS is 
proceeding with this program under strict observation and enforcement 
requirements.

6. Limited Access for the Atlantic Swordfish Fishery

    Comment: Many commenters reiterated the long-standing request on 
the part of some industry participants to implement limited access in 
the swordfish fishery and feel that NMFS should implement limited 
access for the Atlantic swordfish fishery as soon as possible. Some 
firms may go out of business unless limited access is implemented by 
1996.
    Response: NMFS has published an Advance Notice of Proposed 
Rulemaking announcing the availability of discussion papers on limited 
access options for the Atlantic swordfish and shark fisheries, as well 
as a concept paper on rationalization of fisheries for Atlantic highly 
migratory species. These discussion papers will serve as the basis for 
proposed rulemaking on limited access in these fisheries in the fall of 
1995.

7. Procedures for Fishery Closures

    Comment: Numerous comments were offered on the optimal method for 
announcing and implementing a closure of the directed fishery. 
Announcement of a closure should be made at least 14 days in advance, 
and provide an additional 14-day period for offloading the catch.
    Response: NMFS agrees that adequate closure notification is 
necessary to prevent market gluts as well as safety problems with 
closure announcements. This rule increases the minimum notice of a 
closure from 8 to 14 days. Thus, once NMFS issues a closure notice, a 
vessel will have a minimum of 14 days to return to port and offload. At 
this time, NMFS is not providing an additional 14 days to offload 
because of enforcement concerns that need further analysis.

Changes from the Proposed Rule

    In accordance with a review of the factors specified in 50 CFR 
630.24(d), consideration of the comments received, and further analysis 
of available data, the following changes were made to the proposed 
rule:

1. Swordfish Bycatch in the Non-directed Fishery

    The final rule establishes a bycatch limit of 15 fish per trip for 
longline vessels during the non-directed fishing season.

2. Trip Limits

    The interim rule allows all permitted vessels to harvest and 
possess up to and including 31,600 lb (14,334 kg) of swordfish per trip 
in 1996.

3. Other

    The final rule changes the minimum number of days allowed for 
public comment for proposed adjustments to annual quotas from 45 to 30, 
and the minimum notification of a closure from 8 days to 14 days.

Closure of the Directed Fishery

    The regulations governing the Atlantic swordfish fisheries at 50 
CFR 630.25 provide for a specified annual quota (modified to 2,450 mt 
dressed weight in this final rule, including estimated dead discards) 
to be harvested by the directed longline fishery. NMFS is required, 
under Sec. 630.25(a)(1), to monitor the catch and landing statistics 
and, on the basis of these statistics, to project a date when the catch 
of will equal the quota, and to publish a Federal Register document 
announcing the closure. The current projected date on which the 
directed Atlantic swordfish catch by the longline fleet is estimated to 
reach or exceed the quota is October 31, 1995.
    Therefore, NMFS announces that the directed longline fishery for 
swordfish is closed at 12 noon on October 31, 1995. During the closure 
of the directed longline fishery, aboard a vessel using or having on 
board a longline and not having on board harpoon gear, a person may not 
fish for swordfish from the North Atlantic stock, and no more than 15 
swordfish per trip may be possessed or landed. Beginning at 12:01 p.m., 
October 31, 1995, a non-directed longline fleet fishing season will be 
in effect through 11:59 p.m. December 31, 1995. The AA may modify or 
close the non-directed longline fleet fishing season upon publication 
of notification in the Federal Register.

[[Page 46778]]


Classification

    This final rule is published under the authority of ATCA. The AA 
has determined that the regulations contained in this rule are 
necessary to implement the recommendations of ICCAT and are necessary 
for management of the Atlantic swordfish fishery. The Assistant General 
Counsel for Legislation and Regulation of the Department of Commerce 
certified to the Chief Counsel for Advocacy of the Small Business 
Administration at the proposed rule stage that, if adopted, this rule 
would not have a significant economic impact on a substantial number of 
small entities. That certification remains valid. While the 1995 TAC 
represents about a 13-percent reduction from the TAC of the previous 2 
years, the allowable catch is slightly higher than last year's catch; 
as a result, a regulatory flexibility analysis was not prepared. The 
RIR provides further discussion of the economic effects of the final 
rule.
    This action is exempt from review under E.O. 12866.
    NMFS issued a biological opinion under the Endangered Species Act 
(ESA) on September 1, 1995, indicating that the level of impact and 
marine mammal takes from the longline and harpoon swordfish fishery is 
not likely to jeopardize the continued existence of any sea turtle 
species or any marine mammal populations. Prior to the beginning of the 
1996 drift gillnet fishery, NMFS will conduct a formal consultation on 
the fishery under the ESA. Based on the results of the consultation, 
NMFS may then conduct a rulemaking to promulgate any protective 
measures prior to the beginning of the drift gillnet fishing season. 
Since there is no gillnet fishery for the remainder of 1995, no ESA 
consultation on the drift gillnet fishery is necessary at this time.
    The AA has determined that there is good cause to waive partially 
the 30-day delay in effective date normally required by 5 U.S.C. 
553(d), because implementing the U.S. ICCAT-recommended quota for 1995 
is necessary for achieving management objectives and meeting ICCAT 
treaty obligations. The effective date is 7 days from the date of 
filing with the Office of the Federal Register.

List of Subjects in 50 CFR Part 630

    Fisheries, Fishing, Reporting and recordkeeping requirements, 
Treaties.

    Dated: September 1, 1995.
Gary Matlock,
Program Management Officer, National Marine Fisheries Service.
    For the reasons set out in the preamble, 50 CFR part 630 is amended 
as follows:

PART 630--ATLANTIC SWORDFISH FISHERY

    1. The authority citation for part 630 continues to read as 
follows:

    Authority: 16 U.S.C. 1801 et seq. and 16 U.S.C. 971 et seq.

    2. In Sec. 630.2, the definition for ``Regional Director'' is 
revised, and the definition for ``Trip limit'' is added, in 
alphabetical order, to read as follows:


Sec. 630.2  Definitions.

* * * * *
     Regional Director means the Director, Southeast Region, NMFS, 9721 
Executive Center Drive North, St. Petersburg, FL 33702-2432; telephone 
813-570-5301, or a designee.
* * * * *
    Trip limit means the total allowable take from a single trip as 
defined in this section.
* * * * *
    3. In Sec. 630.7, paragraph (z) is added to read as follows:


Sec. 630.7  Prohibitions.

* * * * *
    (z) Exceed the vessel trip limits specified in Sec. 630.23.
    4. In Sec. 630.23, paragraph (d) is added to read as follows:


Sec. 630.23  Harvest limitations.

* * * * *
    (d) Vessel trip limits. In 1996, vessels issued a swordfish permit 
under Sec. 630.4 may not land from, or possess during, a single trip 
more than 31,600 lb (14,334 kg) dressed weight of swordfish, unless a 
closure has been effected under Sec. 630.25.
    5. In Sec. 630.24, paragraph (b)(1), the first sentence of 
paragraph (d)(6), and paragraph (f) are revised to read as follows:


Sec. 630.24  Quotas.

* * * * *
    (b) * * *
    (1) The annual quota for the directed fishery for swordfish is 
2,730 mt, dressed weight, divided into two semiannual quotas as 
follows:
    (i) For the semiannual period January 1 through June 30:
    (A) 27 mt dressed weight, that may be harvested by drift gillnet; 
and
    (B) 1,338 mt, dressed weight, that may be harvested by longline and 
harpoon. To account for harvested fish that are discarded dead, only 
1,225 mt, dressed weight, may be landed in this category.
    (ii) For the semiannual period July 1 through December 31:
    (A) 27 mt, dressed weight, that may be harvested by drift gillnet; 
and
    (B) 1,338 mt, dressed weight, that may be harvested by longline and 
harpoon. To account for harvested fish that are discarded dead, only 
1,225 mt, dressed weight, may be landed in this category.
* * * * *
    (d) * * *
    (6) NMFS will announce any adjustments to the annual quotas by 
publication of a proposed rule in the Federal Register, providing for a 
minimum of a 30-day comment period. * * *
* * * * *
    (f) Inseason adjustments to the bycatch and directed fishery 
quotas. (1) If NMFS determines that the annual bycatch quota will not 
be taken before the end of the fishing year, the excess quota may be 
allocated to the directed-fishery quotas pursuant to the requirements 
and procedures in paragraphs (g) and (h) of this section.
    (2) If NMFS determines that it is necessary to close the directed 
fishery, any estimated overharvest or underharvest directed-fishery 
quota available immediately prior to that closure will be applied to 
the annual bycatch quota and will be used to adjust the annual bycatch 
quota accordingly.
* * * * *
    7. In Sec. 630.25, the second sentences of paragraphs (a)(1) and 
(a)(2), and paragraph (c)(2)(ii) are revised to read as follows:


Sec. 630.25  Closures and bycatch limits.

    (a) * * * (1) * * * The effective date of such notice will be at 
least 14 days after the date such notice is filed at the Office of the 
Federal Register. * * *
    (2) * * * The effective date of such notice will be at least 14 
days after the date such notice is filed at the Office of the Federal 
Register. * * *
* * * * *
    (c) * * *
    (2) * * *
    (ii) No more than 15 swordfish per trip may be possessed in the 
North Atlantic Ocean, including the Gulf of Mexico and Caribbean Sea, 
north of 5O N. lat., or landed in an Atlantic, Gulf of Mexico, or 
Caribbean coastal state. The Assistant Administrator may modify or 
change the bycatch limits upon publication of notice in the Federal 
Register pursuant to the requirements and procedures in paragraphs 
(a)(1) and (a)(2) of this section. Changes in the 

[[Page 46779]]
bycatch limits will be based upon the length of the directed fishery 
closure as well as the estimated catch per vessel in the non-directed 
fishery.
* * * * *
[FR Doc. 95-22238 Filed 9-1-95; 4:39 pm]
BILLING CODE 3510-22-F