[Federal Register Volume 61, Number 60 (Wednesday, March 27, 1996)]
[Proposed Rules]
[Pages 13478-13479]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-7319]



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DEPARTMENT OF COMMERCE
National Oceanic and Atmospheric Administration
50 CFR Part 649
[Docket No. 960315082-6082-01; I.D. 031296C]
RIN 0648-XX55

American Lobster Fishery; Removal of Regulations
AGENCY: National Marine Fisheries Service (NMFS), National Oceanic and 
Atmospheric Administration (NOAA), Commerce.

ACTION: Proposed rule; request for comments.

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SUMMARY: NMFS announces its initial determination to withdraw approval 
of the Fishery Management Plan for the American Lobster Fishery (FMP), 
and proposes to remove the regulations implementing the FMP. Withdrawal 
of FMP approval appears necessary, because changed circumstances have 
called into question whether this FMP is consistent with the national 
standards of the Magnuson Fishery Conservation and Management Act 
(Magnuson Act). The intended effect of this action is to ensure that 
Federal management of the American lobster fishery more closely 
complies with state-administered programs.

DATES: Comments on the proposed rule must be received on or before May 
13, 1996.

ADDRESSES: Comments on the proposed rule should be sent to Dr. Andrew 
A. Rosenberg, Regional Director, Northeast Region, NMFS, One Blackburn 
Drive, Gloucester, MA 01930-3799.
    Copies of the Environmental Assessment (EA) supporting this action 
and the regulatory impact review (RIR) are available from the same 
address.

FOR FURTHER INFORMATION CONTACT: Paul H. Jones, Fishery Policy Analyst, 
508-281-9273.

SUPPLEMENTARY INFORMATION:
    The subject FMP, prepared by the New England Fishery Management 
Council (Council), was approved and implemented in 1983. Implementing 
regulations are found at 50 CFR part 649. The FMP has been amended 
several times since implementation, most recently by Amendment 5. The 
purpose of Amendment 5 is to prevent overfishing through adoption of a 
stock rebuilding program in the exclusive economic zone (EEZ) to be 
developed by effort management teams (EMTs) to enhance the existing 
regulations, including those implemented by the individual coastal 
states and the Atlantic States Marine Fisheries Commission (ASMFC). 
Amendment 5 has not yet achieved this objective and on September 18, 
1995 (60 FR 48086), NMFS published an advance notice of proposed 
rulemaking (ANPR) that requested comments from the public on options 
for lobster management. This proposed rule discusses the comments 
received as a result of the ANPR and the other circumstances that give 
rise to this proposed action to withdraw the FMP.
    These options were discussed in the ANPR: Whether to withdraw the 
FMP and develop regulations under the Atlantic Coastal Fisheries 
Cooperative Management Act (ACFCMA), or proceed with development of a 
Secretarial fishery management plan, or some other option. NMFS stated 
that it wished to retain as many current measures as possible under the 
law, and especially desired to consider those measures proposed by the 
group of industry, government, and other non-government participants 
who constituted the EMTs. Written responses were received on the ANPR 
from the Council, the ASMFC, two state fishery agencies, three fishing 
associations, and one individual. Two comments favored withdrawal of 
the FMP and the development of regulations under the ACFCMA. Five 
comments requested that NMFS keep the current FMP in place while the 
ASMFC develops an amendment to its lobster coastal management plan 
(CMP). The one remaining comment was in favor of Secretarial action for 
the offshore lobster fishery.
    There are several reasons to withdraw this FMP. In accordance with 
the goals of the initiative to reform the Federal regulatory system 
announced by the President on February 21, 1995, the lobster FMP can be 
eliminated without compromising resource management and conservation 
objectives. The American lobster fishery is prosecuted primarily in 
state waters from Maine to Virginia and these states have implemented 
protective measures under state law in addition to the ASMFC CMP. Final 
withdrawal of the FMP and its implementing regulations would only occur 
upon completion of an effective state management program, most likely 
developed by the ASMFC. The primary objective of the FMP has been to 
serve as a vehicle for coordinated management of the American lobster 
fishery throughout its range. The FMP was prepared to support the 
management efforts of the states. However, the need for a Magnuson Act 
fishery management plan for lobster is now in question, given the

[[Page 13479]]
compliance authority included in the ACFCMA.
    In addition, NMFS can no longer ensure that the FMP is, or can be 
amended to be, consistent with National Standard 1, which requires 
implementation of conservation and management measures to prevent 
overfishing. Fishing mortality for American lobster is occurring at a 
rate in excess of that in the overfishing definition, and Amendment 5 
has not fostered the necessary cooperation between the Atlantic coastal 
states, the Council, and the ASMFC to address the problem. Withdrawal 
would allow the ASMFC to address the overfished condition of the stocks 
unhindered by the Council process.
    Withdrawal would also ensure consistency with National Standard 7, 
which requires that conservation and management measures shall, where 
practicable, minimize costs and avoid unnecessary duplication. Prior to 
the implementation of the ACFCMA, interstate plans lacked effective 
compliance authority and states relied upon Federal regulations under 
the Magnuson Act to provide cohesiveness and compliance. This is no 
longer a problem, because the ACFCMA, as recently amended, now provides 
a mechanism for state compliance to coastal management plans 
implemented by the ASMFC and, therefore, is a more appropriate vehicle 
to support the effective implementation of these plans. As a result, in 
some instances where a coastal plan exists or is proposed, the Magnuson 
Act may be an unnecessary duplication.
    Withdrawal of the FMP, provided that complementary Federal 
regulations are issued by NMFS under the ACFCMA, is consistent with the 
formal comments submitted by the ASMFC during the comment period on the 
ANPR. During the comment period, the ASMFC requested a status quo 
approach until the states, through ASMFC, determine where lobster 
management should go from here by amending its CMP for American 
lobster. The Maine Department of Marine Resources commented that 
management of lobster should transfer from the Council to the ASMFC 
immediately. The Connecticut Department of Environmental Protection 
requested that the FMP remain in place to allow the ASMFC time to 
develop its CMP. Timely withdrawal of this FMP and replacement by a 
state-administered CMP is consistent with the requests of these 
agencies.
    Therefore, NMFS is publishing this proposed rule stating its intent 
to withdraw the FMP and remove its implementing regulations. Final 
action would be contingent upon appropriate action by the ASMFC that 
would allow NMFS to issue effective Federal regulations under the 
ACFCMA, as necessary.
    Timing the withdrawal to coincide with implementation of an ASMFC 
CMP is necessary, because a lapse in the Federal regulations would 
suspend conservation measures in the EEZ. For instance, the Federal 
minimum size limit, the protective measures for egg-bearing lobsters, 
and the limited access permit program would lapse, jeopardizing 
conservation and canceling roughly 3,000 Federal limited access 
moratorium permits. The administrative and resource costs that would 
result from a lapse in the regulations would exceed the benefits of 
this action.
    Amendment 5 to the FMP was approved on the basis that it 
established a participative process to reduce effort and prevent 
overfishing. As stated in the ANPR, NMFS supports the EMT concept and 
the prevention of overfishing objective of Amendment 5 and expects that 
the state management plan initiative will be guided by the national 
standards and guidelines to ensure effective conservation and 
management of the American lobster resource.

Classification

    This proposed rule has been determined to be not significant for 
purposes of E.O. 12866.
    At this time, the Assistant Administrator for Fisheries (AA) has 
not determined that the action this rule would implement is consistent 
with the national standards, other provisions of the Magnuson Act, and 
other applicable law. The AA, in making that determination, will take 
into account the data, views, and comments received during the comment 
period.
    NMFS prepared a draft EA for this amendment that discusses the 
impact on the environment as a result of this rule. A copy of the draft 
EA may be obtained from NMFS (see ADDRESSES).
    The Assistant General Counsel for Legislation and Regulation of the 
Department of Commerce has certified to the Chief Counsel for Advocacy 
of the Small Business Administration that this proposed rule, if 
adopted, would not have a significant economic impact on a substantial 
number of small entities. As a result, a regulatory flexibility 
analysis was not prepared. This rule has no direct effect on the stock 
of lobster or the lobster fishery, since the management measures that 
would be removed via this action are expected to be implemented under 
the ACFCMA before withdrawal is complete. If NMFS intends to alter, 
add, or eliminate any regulations implemented under the FMP under the 
authority of the ACFCMA, an initial regulatory flexibility analysis 
will be done for those specific regulations at that time.
    This rule does not contain a collection-of-information requirement 
for the purposes of the Paperwork Reduction Act.
    This proposed rule does not contain policies with federalism 
implications sufficient to warrant preparation of a federalism 
assessment under E.O. 12612.

List of Subjects in 50 CFR Part 649

    Fisheries.

    Dated: March 20, 1996.
Gary Matlock,
Program Management Officer, National Marine Fisheries Service.
    For the reasons set out in the preamble, under the authority of 16 
U.S.C. 1801 et seq., part 649 is proposed to be removed.
[FR Doc. 96-7319 Filed 3-26-96; 8:45 am]
BILLING CODE 3510-22-F