[Federal Register Volume 61, Number 228 (Monday, November 25, 1996)]
[Proposed Rules]
[Pages 59852-59856]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-29500]


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

DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

50 CFR Part 622

[Docket No. 961108316-6316-01; I.D. 101796C]
RIN 0648-AI47


Fisheries of the Caribbean, Gulf of Mexico, and South Atlantic; 
Reef Fish Fishery of the Gulf of Mexico; Amendment 14

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

ACTION: Proposed rule, request for comments.

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

SUMMARY: NMFS issues this proposed rule to implement Amendment 14 to 
the Fishery Management Plan for the Reef Fish Resources of the Gulf of 
Mexico (FMP). This proposed rule would prohibit the use or possession 
of fish traps in the exclusive economic zone (EEZ) of the Gulf of 
Mexico (Gulf) beginning February 8, 2007; prohibit the use or 
possession of fish traps west of 85 deg.30' W. long.; modify the 
procedure for retrieval of fish traps when a breakdown prevents a 
vessel with a trap endorsement from retrieving its traps; modify the 
restrictions on transfer of fish trap endorsements and reef fish 
permits; prohibit the harvest or possession of Nassau grouper in or 
from the EEZ of the Gulf; and clarify the authority of the Regional 
Administrator, Southeast Region, NMFS (RA), to reopen a prematurely 
closed fishery. In addition, NMFS proposes to extend the current 
prohibition on the possession of dynamite on board a permitted vessel 
to those vessels permitted in the South Atlantic golden crab fishery. 
The intended effects of this rule are to conserve and manage the reef 
fish resources of the Gulf and enhance enforceability of the 
regulations.

DATES: Written comments must be received on or before January 9, 1997.

ADDRESSES: Comments on the proposed rule or on the initial regulatory 
flexibility analysis (IRFA) must be sent to Robert Sadler, Southeast 
Regional Office, NMFS, 9721 Executive Center Drive N., St. Petersburg, 
FL 33702.
    Comments regarding the collection-of-information requirement 
contained in this rule should be sent to Edward E. Burgess, Southeast 
Regional Office, NMFS, 9721 Executive Center Drive N., St. Petersburg, 
FL 33702, and to the Office of Information and Regulatory

[[Page 59853]]

Affairs, Office of Management and Budget (OMB), Washington, DC 20503 
(Attention: NOAA Desk Officer).
    Requests for copies of Amendment 14, which includes an 
environmental assessment, a regulatory impact review (RIR), and an 
IRFA, should be sent to the Gulf of Mexico Fishery Management Council, 
5401 West Kennedy Boulevard, Suite 331, Tampa, FL, 33609, PHONE: 813-
228-2815; FAX: 813-225-7015.

FOR FURTHER INFORMATION CONTACT: Robert Sadler, 813-570-5305.

SUPPLEMENTARY INFORMATION: The reef fish fishery of the Gulf of Mexico 
is managed under the FMP. The FMP was prepared by the Gulf of Mexico 
Fishery Management Council (Council) and is implemented through 
regulations at 50 CFR part 622 under the authority of the Magnuson-
Stevens Fishery Conservation and Management Act (Magnuson Act).

Background and Rationale

    The Council developed Amendment 14 to address various problems in 
the reef fish fishery. Most of the problems are associated with the 
fish trap fishery and the February 7, 1997, expiration of the existing 
moratorium on the issuance of additional fish trap endorsements.

Phaseout of the Use of Fish Traps in the Gulf

    The Council established a moratorium on additional fish trap 
endorsements under Amendment 5 that will extend through February 7, 
1997 (final rule implementing Amendment 5 was effective February 7, 
1994; 59 FR 966). This moratorium was implemented to stabilize the 
number of participants in the fish trap fishery until the Council could 
obtain better information on the trap fishery's ecological impacts. 
This information was recently provided through completion of a NMFS 
observer study on the biological effects of the fish trap fishery. The 
study indicated, that for the particular area where most of the study 
data were collected, fish traps can target the higher-value species 
(grouper and snapper) without major bycatch of non-targeted species. 
Because the study's duration and geographical extent were limited, the 
Council determined that the study data and conclusions may not be 
representative of the Gulf reef fish trap fishery as a whole.
    Many of the Council members were concerned over the apparent lack 
of compliance with fish trap rules and believed that enforcement would 
never be adequate to assure compliance. The Council members were 
concerned over the impacts of incidental catch of non-targeted species, 
increased unreported fishing effort, and long-term ghost fishing from 
abandoned or lost traps with non-functioning escape panels. Because 
fish traps are completely submerged and can be fished without fishermen 
being present, they are difficult for enforcement officers to locate 
and, if being fished illegally without surface buoys, are difficult to 
identify. Regulations pertaining to trap construction specifications, 
including escape panels, prohibited areas, and tag requirements can 
only be enforced if the fisherman is intercepted during the relatively 
short periods of deployment or retrieval. The Council's Law Enforcement 
and Reef Fish Advisory Panels both recommended that the use of fish 
traps be banned in the Gulf EEZ.
    After extensive deliberations and consideration of public comments, 
the Council proposed a 10-year phaseout of the fish trap fishery. 
Compared to an immediate prohibition, the 10-year phaseout period would 
spread the economic impact on the existing participants over a 
relatively long time. This phaseout period would allow fishermen to 
make a gradual transition to other fisheries without the disruption 
associated with an immediate termination of the fishery. The majority 
of fishermen in the fish trap fishery are only partially dependent on 
the fishery and can switch to other fisheries or fishing methods in 
which they are already participating.

Prohibition on the Use or Possession of Fish Traps West of Cape San 
Blas, FL

    The Council proposes to prohibit the use of fish traps west of 
85 deg.30' W. long., the longitude of Cape San Blas, FL, consistent 
with the Council's intent to limit, reduce, and ultimately eliminate 
the use of fish traps. This measure would prevent an expansion of the 
fishery beyond its current geographical range and was supported by most 
persons who testified on this measure at the Council's public hearings. 
The measure would also limit potential enforceability problems by 
restricting the area where traps may be used. The immediate effects on 
fishermen would be limited since only one person who owns a vessel with 
a fish trap endorsement resides west of Cape San Blas, FL.

Modification of the Procedure for Retrieval of Fish Traps

    In the event of a breakdown of a vessel with a fish trap 
endorsement, current regulations allow another vessel to retrieve its 
fish traps, if written authorization from the owner or operator of the 
vessel with the endorsement is on board. Those authorizations do not 
have to be obtained from or registered with NMFS. This provision is 
being used in a manner not intended by the Council. Some owners of 
vessels with fish trap endorsements are providing such authorizations 
to the operators of other vessels without regard to vessel breakdowns. 
In this manner, vessels that do not have fish trap endorsements are 
being used to tend traps.
    To provide greater accountability for retrieval of traps when 
vessel breakdown prevents retrieval by the vessel with the fish trap 
endorsement, the proposed measure would require that authorization to 
retrieve a disabled vessel's traps be obtained from NMFS' Office of 
Enforcement. Such authorizations would be specific as to vessel, 
individual(s), point of landing, and time period, and be issued only at 
the time that a disabling incident occurs. This measure would allow 
enforcement personnel, including U.S. Coast Guard and state enforcement 
officers, to check with NMFS' Office of Enforcement to verify the terms 
of authorization. The Office of Enforcement will accept phone calls 
around the clock; messages at certain times of the day will require a 
return call by office personnel.

Modification of the Restrictions on Transfer of Fish Trap 
Endorsements

    During the first 2 years of the phaseout period, fish trap 
endorsements would be transferable among vessels with reef fish 
permits. This initial transfer period is intended to give fish trap 
fishermen an opportunity to exit the fishery and receive economic 
compensation by selling their endorsements. The Council limited the 
period for unrestricted transfers to 2 years to encourage a continued 
reduction in the number of fish trap endorsements for the remainder of 
the phaseout.
    During the third through the tenth year of the phaseout period, 
fish trap endorsements would be transferable only to an immediate 
family member, another person upon death or disability of the 
endorsement holder, another vessel owned by the same entity, or any of 
the 56 individuals who were fishing traps after November 19, 1992, and 
were excluded by the current moratorium. The limitation on transfer of 
endorsements under these conditions would be expected to result in 
additional attrition during the last 8 years of the phaseout. 
Endorsements that expire and are not renewed would not be reissued.

[[Page 59854]]

Modification of the Restrictions on Transfer of Reef Fish Permits

    The current regulations allow transfer of a permit between persons 
only when the owner of the vessel whose permit is being transferred has 
met the income qualification for the permit. This prevents a vessel 
operator, whose earned income qualified a vessel for a permit, from 
acquiring the permit by transfer from the owner when buying the vessel 
from the owner. The Council proposed an exception to the general rule 
that only an owner-qualified permit may be transferred to another 
person by allowing the transfer when the recipient is the income-
qualifying operator.
    The Council also proposed to allow a non-income-qualifying owner 
who loses his income-qualifying operator to continue in the reef fish 
fishery for a limited time (grace period) in order to meet the income 
qualification for the vessel permit. Currently, upon transfer of a reef 
fish permit, an owner who does not meet the earned income requirement 
and who receives a trap permit by transfer may continue to operate the 
vessel in the fishery for one full calendar year in order to meet that 
requirement. An additional 3\1/2\ months (beyond the one full calendar 
year period) is provided for the new owner to document his/her earned 
income for the calendar year and apply for renewal of the permit and 
for NMFS to process the application and issue a renewed permit. 
However, an owner who loses his/her earned-income qualifying operator 
does not have the same grace period. The Council's proposal would grant 
the same grace period for meeting the earned income requirement to such 
owner.

Prohibition on the Harvest or Possession of Nassau Grouper

    Nassau grouper is on the candidate list of threatened or endangered 
species under the Endangered Species Act. The species is classified by 
NMFS as over-utilized, with a current potential yield of zero. Harvest 
and possession of Nassau grouper is prohibited in Florida's waters, the 
South Atlantic EEZ, and the Caribbean EEZ, but not in the Gulf EEZ. A 
closure of the Gulf EEZ would provide consistent regulations for Nassau 
grouper in the U.S. EEZ. Economic impacts are expected to be limited, 
because Nassau grouper have comprised 0.5 percent of shallow-water 
grouper harvest in recent years.

Reopening of a Commercial or Recreational Fishery

    The Council proposes to authorize the RA to reopen a commercial or 
recreational fishery for a Gulf reef fish species or species group when 
needed to ensure that a commercial quota or recreational allocation may 
be reached. Such authorization would constitute a modification to the 
framework procedure of the FMP for making changes to management 
measures. As the closure provisions currently apply only to Gulf reef 
fish species or species groups that have commercial quotas, the 
proposed change would not be immediately applicable to the recreational 
fisheries for Gulf reef fish.

Availability of Amendment 14

    Additional background and rationale for the measures discussed 
above are contained in Amendment 14, the availability of which was 
announced in the Federal Register (61 FR 55128, October 24, 1996).

Changes Proposed by NMFS

    Current regulations prohibit the possession on board a permitted 
vessel of dynamite or similar explosive substance. To apply this 
prohibition to permitted vessels in the South Atlantic golden crab 
fishery, NMFS proposes to add, at Sec. 622.31(a), a reference to 
Sec. 622.17, which is the section that requires permits in the golden 
crab fishery.
    Generally, a vessel permit or endorsement is not transferable. To 
correctly reflect the current exceptions to that general rule, NMFS 
proposes to add, at Sec. 622.4(g), a reference to Sec. 622.4(p) 
regarding transfers of red snapper endorsements.
    NMFS proposes other minor language changes for consistency and 
clarity.

Classification

    Section 304(a)(1)(D) of the Magnuson Act requires NMFS to publish 
regulations proposed by a Council within 15 days of receipt of the 
amendment and regulations. At this time, NMFS has not determined that 
the provisions of Amendment 14 are 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.
    This proposed rule has been determined to be not significant for 
purposes of E.O. 12866.
    As part of the RIR, the Council prepared an IRFA, summarized as 
follows. Since all participants in the fishery, including those in the 
fish trap sector, are small business entities, disproportionate effects 
on capital costs of compliance would not occur. A substantial number of 
the 92 small business entities that use fish traps in the reef fish 
fishery would be affected by the proposed rule. These entities would 
not be able to use fish traps beginning February 8, 2007, and would 
incur a substantial reduction in income. The regulations are likely to 
result in a change in gross revenues of more than 5 percent. 
Performance standards are not practicable because the trap gear cannot 
be adequately monitored and enforced. Approximately 87 percent of these 
entities (80 in number) would be able to switch to other fisheries, but 
would incur substantial increases in costs to acquire and operate the 
alternative gear. Since the fish traps and related gear would not be 
marketable, all investments in the traps and gear would be lost. 
Approximately 13 percent of these entities (12 in number) would be 
unable to switch to other fisheries and would be forced to cease 
business operations. No duplicative, overlapping, or conflicting 
Federal rules have been identified regarding this action. Significant 
alternatives to the proposed action to eliminate the use of fish trap 
gear in ten years were considered including: Several related 
alternatives that would create a permanent fish trap license limitation 
system but differed in the number of allowed participants; an 
alternative that would extend the current permit moratorium until the 
year 2000; an alternative delaying any decisions for two years; and a 
status-quo alternative. The Council chose its preferred alternative 
(ten-year phase out of the trap fishery) based on a determination that 
this action would address its concerns about the adverse biological 
impacts of fish traps and the serious enforcement difficulties with 
this fishery, while providing affected trap fishermen sufficient time 
to plan for the termination of the fishery. The IRFA discusses the 
costs and benefits of all the alternatives considered by the Council 
for this action. The IRFA also identifies and assesses the alternatives 
for the other proposed measures of Amendment 14. A copy of the IRFA is 
available (see ADDRESSES).
    Notwithstanding any other provision of law, no person is required 
to respond to nor shall a person be subject to a penalty for failure to 
comply with a collection of information subject to the requirements of 
the Paperwork Reduction Act (PRA) unless that collection of information 
displays a currently valid OMB Control Number.
    This rule contains a new collection-of-information requirement 
subject to the PRA--namely, the requirement that, when a vessel with a 
fish trap

[[Page 59855]]

endorsement has a breakdown that prevents the vessel from retrieving 
its traps, the owner or operator must notify the nearest NMFS Office of 
Enforcement and obtain authorization for another vessel to retrieve the 
traps. This requirement has been submitted to OMB for approval. The 
public reporting burden for this collection of information is estimated 
at 3 minutes per response, including the time for reviewing 
instructions, searching existing data sources, gathering and 
maintaining the data needed, and completing and reviewing the 
collection of information. Send comments regarding this reporting 
burden estimate, or any other aspect of the collection of information, 
including suggestions for reducing the burden, to NMFS and OMB (see 
ADDRESSES).

List of Subjects in 50 CFR Part 622

    Fisheries, Fishing, Puerto Rico, Reporting and recordkeeping 
requirements, Virgin Islands.

    Dated: November 13, 1996.
Rolland A. Schmitten,
Assistant Administrator for Fisheries, National Marine Fisheries 
Service.
    For the reasons set out in the preamble, 50 CFR part 622 is 
proposed to be amended as follows:

PART 622--FISHERIES OF THE CARIBBEAN, GULF, AND SOUTH ATLANTIC

    1. The authority citation for part 622 continues to read as 
follows:

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

    2. In Sec. 622.4, in paragraph (a)(2)(i), in the second sentence, 
the words ``moratorium on'' are removed; in paragraph (a)(2)(v), the 
last sentence is revised; in paragraph (g), the first sentence is 
revised; paragraphs (m) and (n) are revised; and in paragraph (p)(3)(i) 
the last, parenthetical sentence is revised to read as follows:


Sec. 622.4  Permits and fees.

    (a) * * *
    (2) * * *
    (v) * * * See paragraph (m) of this section regarding a moratorium 
on commercial vessel permits for Gulf reef fish and paragraphs (m)(3) 
and (m)(5) of this section for limited exceptions to the earned income 
requirement for a permit.
* * * * *
    (g) * * * A vessel permit or endorsement or dealer permit issued 
under this section is not transferable or assignable, except as 
provided in paragraph (m) of this section for a commercial vessel 
permit for Gulf reef fish, as provided in paragraph (n) of this section 
for a fish trap endorsement, or as provided in paragraph (p) of this 
section for a red snapper endorsement. * * *
* * * * *
    (m) Moratorium on commercial vessel permits for Gulf reef fish. 
This paragraph (m) is effective through December 31, 2000.
    (1) No applications for additional commercial vessel permits for 
Gulf reef fish will be accepted. Existing vessel permits may be 
renewed, are subject to the restrictions on transfer or change in 
paragraphs (m)(2) through (m)(5) of this section, and are subject to 
the requirement for timely renewal in paragraph (m)(6) of this section.
    (2) An owner of a permitted vessel may transfer the commercial 
vessel permit for Gulf reef fish to another vessel owned by the same 
entity.
    (3) An owner whose earned income qualified for the commercial 
vessel permit for Gulf reef fish may transfer the permit to the owner 
of another vessel, or to the new owner when he or she transfers 
ownership of the permitted vessel. Such owner of another vessel, or new 
owner, may receive a commercial vessel permit for Gulf reef fish for 
his or her vessel, and renew it through April 15 following the first 
full calendar year after obtaining it, without meeting the earned 
income requirement of paragraph (a)(2)(v) of this section. However, to 
further renew the commercial vessel permit, the owner of the other 
vessel, or new owner, must meet the earned income requirement not later 
than the first full calendar year after the permit transfer takes 
place.
    (4) An owner of a permitted vessel, the permit for which is based 
on an operator's earned income and, thus, is valid only when that 
person is the operator of the vessel, may transfer the permit to the 
income qualifying operator when such operator becomes an owner of a 
vessel.
    (5) An owner of a permitted vessel, the permit for which is based 
on an operator's earned income and, thus, is valid only when that 
person is the operator of the vessel, may have the operator 
qualification on the permit removed, and renew it without such 
qualification through April 15 following the first full calendar year 
after removing it, without meeting the earned income requirement of 
paragraph (a)(2)(v) of this section. However, to further renew the 
commercial vessel permit, the owner must meet the earned income 
requirement not later than the first full calendar year after the 
operator qualification is removed. To have an operator qualification 
removed from a permit, the owner must return the original permit to the 
RD with an application for the changed permit.
    (6) A commercial vessel permit for Gulf reef fish that is not 
renewed or that is revoked will not be reissued. A permit is considered 
to be not renewed when an application for renewal is not received by 
the RD within 1 year of the expiration date of the permit.
    (n) Endorsements for fish traps in the Gulf. The provisions of this 
paragraph (n) are effective through February 7, 2007.
    (1) Only those fish trap endorsements that are valid on February 7, 
1997, may be renewed. Such endorsements are subject to the restrictions 
on transfer in paragraphs (n)(2) and (3) of this section and are 
subject to the requirement for timely renewal in paragraph (n)(5) of 
this section. Effective February 8, 2007, no fish trap endorsements are 
valid.
    (2) Through February 7, 1999, a fish trap endorsement may be 
transferred only to a vessel that has a commercial permit for reef 
fish.
    (3) The provisions of this paragraph (n)(3) are effective February 
8, 1999. A fish trap endorsement is not transferable except as follows:
    (i) An owner of a vessel with a fish trap endorsement may transfer 
the endorsement to another vessel owned by the same entity.
    (ii) A fish trap endorsement is transferable upon a change of 
ownership of a permitted vessel with such endorsement from one to 
another of the following: Husband, wife, son, daughter, brother, 
sister, mother, or father.
    (iii) When a change of ownership of a vessel with a fish trap 
endorsement is directly related to the disability or death of the 
owner, the RD may issue such endorsement, temporarily or permanently, 
with the commercial vessel permit for Gulf reef fish that is issued for 
the vessel under the new owner. Such new owner will be the person 
specified by the owner or his/her legal guardian, in the case of a 
disabled owner, or by the will or executor/administrator of the estate, 
in the case of a deceased owner. (Paragraphs (m)(3) and (m)(4) of this 
section apply for the transfer of a commercial vessel permit for Gulf 
reef fish upon disability or death of an owner.)
    (iv) A fish trap endorsement may be transferred to a vessel with a 
commercial vessel permit for Gulf reef fish whose owner has a record of 
landings of reef fish from fish traps in the Gulf EEZ, as reported on 
fishing vessel logbooks received by the SRD from November 20, 1992, 
through February 6, 1994, and who was unable to obtain a fish trap 
endorsement for the vessel with the reported landings.

[[Page 59856]]

    (4) The owner of a vessel that is to receive a transferred 
endorsement must return the originals of the endorsed commercial vessel 
permit for Gulf reef fish and the unendorsed permit to the RD with an 
application for a fish trap endorsement for his or her vessel.
    (5) A fish trap endorsement that is not renewed or that is revoked 
will not be reissued. Such endorsement is considered to be not renewed 
when an application for renewal is not received by the RD within 1 year 
of the expiration date of the permit.
* * * * *
    (p) * * *
    (3) * * *
    (i) * * * (Paragraphs (m)(3) and (m)(4) of this section apply for 
the transfer of a commercial vessel permit for Gulf reef fish upon 
disability or death of an owner.)
* * * * *
    3. In Sec. 622.31, in paragraph (a), the reference to 
``Sec. 622.4'' is revised to read ``Sec. 622.4 or Sec. 622.17'' and 
paragraph (c) is revised to read as follows:


Sec. 622.31  Prohibited gear and methods.

* * * * *
    (c) Fish traps. (1) A fish trap may not be used in the South 
Atlantic EEZ.
    (2) A fish trap may not be used or possessed in the Gulf EEZ west 
of 85 deg.30' W. long. and, effective February 8, 2007, may not be used 
or possessed in the Gulf EEZ.
    (3) A fish trap used other than where authorized in paragraph 
(c)(1) or (c)(2) of this section may be disposed of in any appropriate 
manner by the Assistant Administrator or an authorized officer.
* * * * *
    4. In Sec. 622.32, paragraph (b)(2)(iii) is revised to read as 
follows:


Sec. 622.32  Prohibited and limited harvest species.

* * * * *
    (b) * * *
    (2) * * *
    (iii) Red drum and Nassau grouper may not be harvested or possessed 
in or from the Gulf EEZ. Such fish caught in the Gulf EEZ must be 
released immediately with a minimum of harm.
* * * * *


Sec. 622.37  [Amended]

    5. In Sec. 622.37(d)(4), the word ``Nassau,'' is removed.
    6. In Sec. 622.40, paragraph (a)(2) is revised to read as follows:


Sec. 622.40  Limitations on traps and pots.

    (a) * * *
    (2) Gulf EEZ. A fish trap in the Gulf EEZ may be pulled or tended 
only by a person (other than an authorized officer) aboard the vessel 
with the fish trap endorsement to fish such trap. If such vessel has a 
breakdown that prevents it from retrieving its traps, the owner or 
operator must immediately notify the nearest NMFS Office of Enforcement 
and must obtain authorization for another vessel to retrieve and land 
its traps. The request for such authorization must include the 
requested effective period for the retrieval and landing, the persons 
and vessel to be authorized to retrieve the traps, and the point of 
landing of the traps. Such authorization will be specific as to the 
effective period, authorized persons and vessel, and point of landing. 
Such authorization is valid solely for the removal of fish traps from 
the EEZ and for harvest of fish incidental to such removal.
* * * * *
    7. In Sec. 622.42, paragraph (a)(3) is revised to read as follows:


Sec. 622.42  Quotas.

* * * * *
    (a) * * *
    (3) Shallow-water groupers, that is, all groupers other than deep-
water groupers, jewfish, and Nassau grouper, including scamp before the 
quota for shallow-water groupers is reached, combined--9.8 million lb 
(4.4 million kg), round weight.
* * * * *


Sec. 622.43  [Amended]

    8. In Sec. 622.43(b)(1), the words ``bartered, traded, or'' are 
removed.
    9. In Sec. 622.48, paragraph (d)(1) is revised to read as follows:


Sec. 622.48  Adjustment of management measures.

* * * * *
    (d) * * *
    (1) For a species or species group: Target date for rebuilding an 
overfished species, TAC, bag limits, size limits, vessel trip limits, 
closed seasons or areas, gear restrictions, quotas, and reopening of a 
fishery prematurely closed.
* * * * *
[FR Doc. 96-29500 Filed 11-22-96; 8:45 am]
BILLING CODE 3510-22-F