[Federal Register Volume 62, Number 138 (Friday, July 18, 1997)]
[Rules and Regulations]
[Pages 38485-38487]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 97-18912]


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DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

50 CFR Part 285

[Docket No. 960816226-7172-05; I.D. 061897C]
RIN 0648-AJ04


Atlantic Tuna Fisheries; Regulatory Adjustments

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

ACTION: Final rule.

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SUMMARY: NMFS issues this final rule to amend the regulations governing 
the Atlantic tuna fisheries to prohibit the use of aircraft to assist 
fishing vessel operators in the location and capture of Atlantic 
bluefin tuna (ABT), with the exception of vessels permitted in the 
Purse Seine and Harpoon categories, and to establish a deadline for 
permit category changes for 1997 only. These regulatory amendments are 
necessary to achieve the domestic management objectives for the 
Atlantic tuna fisheries.
DATES: Effective July 14, 1997.
ADDRESSES: Copies of supporting documents, including an Environmental 
Assessment and Regulatory Impact Review (EA/RIR), are available from, 
Rebecca Lent, Chief, Highly Migratory Species Management Division, 
Office of Sustainable Fisheries (F/SF1), NMFS, 1315 East-West Highway, 
Silver Spring, MD 20910-3282.

FOR FURTHER INFORMATION CONTACT: John Kelly, 301-713-2347.

SUPPLEMENTARY INFORMATION: The Atlantic tuna fisheries are managed 
under the authority of the Atlantic Tunas Convention Act (ATCA). The 
ATCA authorizes the Secretary of Commerce (Secretary) to issue 
regulations as may be necessary to carry out the recommendations of the 
International Commission for the Conservation of Atlantic tunas 
(ICCAT). The authority to issue these regulations has been delegated 
from the Secretary to the Assistant Administrator for Fisheries, NOAA 
(AA).
    Background information about the need for revisions to the Atlantic 
tunas fishery regulations was provided in the preamble to the proposed 
rule (62 FR 9726, March 4, 1997) and is not repeated here. All measures 
in the proposed rule, except for the prohibition on the use of 
aircraft, were addressed in an earlier final rule (62 FR 30741, June 5, 
1997). Additionally, NMFS issued an interim final rule that suspended 
the May 15 deadline for switching permit categories for calendar year 
1997 until the remaining regulatory issues which could influence 
category selection were resolved and a new deadline set. Final quotas 
were published on June 30, 1997 (62 FR 35107) and the spotter aircraft 
issue is addressed by this final rule. As there are no remaining 
regulatory issues to be resolved that would influence category 
selection, vessel owners now have sufficient information to select an 
appropriate permit category for 1997. The deadline for switching permit 
categories for calendar year 1997 is set as July 28, 1997. After 1997, 
the deadline will revert to May 15.

Relation to Proposed Consolidation

    The regulatory amendments contained in this final rule, when 
proposed, were drafted to be consistent with a proposed rule to 
consolidate all of the regulations for Atlantic highly migratory 
species (HMS) fisheries, published on November 6, 1996 (61 FR 57361). 
The proposed consolidation would group all regulations pertaining to 
Atlantic HMS under 50 CFR part 630. The final consolidated regulations 
have not yet been issued. Accordingly, the regulatory amendments 
contained in this final rule were revised to make the appropriate 
changes to the existing text at 50 CFR part 285. The regulatory 
amendments contained in this final rule will eventually be incorporated 
into the final consolidated regulations at 50 CFR part 630. Copies of 
the proposed consolidation rule may be obtained by writing (see 
ADDRESSES) or calling the contact person (see FOR FURTHER INFORMATION 
CONTACT).

Spotter Aircraft Prohibition

    Since the mid-1980's, fishery participants have raised concerns 
that the use of spotter aircraft in the ABT fishery accelerates catch 
rates and compromises conservation, equal opportunity and safety. In 
1996, a voluntary agreement was signed by the majority of active tuna 
aircraft spotters that would limit their activity in the General 
category to harpoon vessels. NMFS recognized that the voluntary 
agreement warranted a trial period but also indicated that the agency 
would continue to monitor the situation and would take appropriate 
action if necessary. Fishery management concerns continue to be 
expressed, anecdotal information suggests that the number of spotter 
aircraft has increased, and vessel safety issues continue to be raised. 
Accordingly, NMFS has reconsidered the need to take action. By this 
final rule, the use of aircraft to assist fishing vessel operators in 
the location and capture of ABT, with the exception of vessels 
operating in the Harpoon and Purse Seine categories, is prohibited. 
These regulatory changes will improve NMFS' ability to achieve domestic 
management objectives for the Atlantic tuna fisheries.

Comments and Responses

    NMFS conducted several public hearings on the proposed rule and 
received written and oral comments over a 30-day comment period. Nearly 
two thousand comments (letters and comments) were received regarding 
the proposed ban on spotter aircraft. Responses to the comments on the 
spotter aircraft issue are provided below.
     Comment: Those in favor of the prohibition commented that it would 
restore equal opportunity for vessels of different categories and 
lengthen the Harpoon and General category seasons without the use of 
further effort controls.
    Response: Although data on the use and effects of spotter aircraft 
on the ABT fishery are not sufficient for a quantitative analysis of 
impacts, it is undeniable that there is a decrease in search time when 
spotter aircraft are used. Data regarding recent closures in the 
General and Harpoon categories support the conclusion that seasons are 
shortened. The International Commission for the Conservation of 
Atlantic Tunas (ICCAT) has recognized the effect of spotter aircraft on 
catch rates; in 1996, ICCAT adopted a recommendation that the use of 
spotter aircraft by purse seine vessels in the Mediterranean be 
prohibited due to the aircrafts' effect of accelerating catch rates. 
NMFS agrees that the use of spotter aircraft accelerates catch rates. 
Accelerated catch rates are inconsistent with the regulatory goal of 
extending the ABT season for the General and Angling categories, and 
with actions taken this year and in previous years to accomplish that 
goal. Extending the season for the rod-and-reel fisheries in these two 
categories helps improve scientific monitoring of the stock by allowing 
catch-per-unit-effort (CPUE) data collection over a wider geographical 
area and a longer period of time. Extending the season also provides 
fishing opportunities over a wider area. Data from the Harpoon and 
Purse Seine categories have not been

[[Page 38486]]

incorporated into any of the currently usable CPUE indices, therefore 
the effect of spotter aircraft accelerating catch rates in these 
categories is less significant for scientific monitoring.
    Comment: Some commenters questioned why the Purse Seine category is 
exempted from the prohibition on the use aircraft to locate and capture 
ABT.
    Response: The purse seine fishery in the United States is managed 
under an individual vessel quota program; therefore, the Purse Seine 
category allocation cannot be exceeded. It is within each vessel's 
discretion to use aircraft that may have the effect of accelerating 
catch rates by assisting in locating schools of large fish. The Purse 
Seine category does not provide CPUE data for stock assessment. 
Likewise, Harpoon category CPUE data are not currently used to assess 
the ABT stock. The harpoon fishery is managed under a quota program 
which is monitored on a real-time basis through landing cards. 
Accordingly, accelerated catch rates would not likely cause the quota 
to be exceeded.
     Comment: Some constituents indicated that spotter aircraft aid in 
aerial surveys and enforcement, and in the provision of emergency 
assistance for boats and marine mammals. Constituents argued that a ban 
would affect stock assessments, potentially increase undersized 
discards and mortality, and be impossible to enforce. Some argued that 
the use of aircraft is historical and should be considered as another 
type of fishing gear. Others noted that the banning of spotter aircraft 
would compromise the safety of vessels at sea.
    Response: NMFS will continue to work with spotter pilots, industry 
members and organizations, and scientific researchers to develop an 
aerial index of abundance that can be used in stock assessments. The 
comments on the effects of a spotter aircraft ban with respect to the 
harpoon fishery are noted. Exempting the Harpoon category preserves the 
status quo for that category. Regarding enforcement, there is a 
commitment by industry members to work with NMFS enforcement by 
providing information on potential violations of fishery regulations. 
NMFS enforcement agents are special investigators and have been trained 
to collect the necessary evidence to build a successful case. 
Information suggests near collisions of spotter aircraft due to 
multiple aircraft flying at low altitude, and near collisions of 
fishing vessels due to aircraft attracting too many vessels to the same 
area.
    Comment: Some General and Harpoon category permit holders expressed 
concern that NMFS would not decide the spotter aircraft issue until 
after May 15, the last day to change categories.
    Response: Given the significance of spotter aircraft use in making 
a permit category selection, NMFS extended indefinitely the deadline 
for category selection for 1997 (62 FR 27518, May 20, 1997). With the 
publication of this final rule, NMFS establishes a deadline for 
selecting a permit category in 1997 of July 28, 1997.
    Comment: Comments were received noting that the proposed ban on 
spotter aircraft would have a significant impact on a substantial 
number of small entities in that 83 percent of the fish spotters would 
be forced out of business.
    Response: These commenters submitted no data to NMFS which would 
justify this claim. The greater part of the spotter aircraft activity 
currently occurs in the Purse Seine and Harpoon categories. By 
exempting these two categories from the prohibition on the use of 
spotter aircraft, the impact of the prohibition on aerial fish spotters 
is substantially lessened.
    Further, the aerial fish spotting business is only a small portion 
of the small business aviation sector. While some spotter pilots will 
likely suffer revenue losses, no evidence is available to NMFS that the 
majority of small aviation businesses derive all or most of their 
income from services provided to ABT fishing vessels.
    Comment: The proposed rule would have a significant economic impact 
on a substantial number of small entities within the meaning of the 
Regulatory Flexibility Act and NMFS should prepare a Regulatory 
Flexibility Analysis.
    Response: See discussion of Regulatory Flexibility Act in the 
Classification section below.

Changes from the Proposed Rule

    For the reasons stated above, NMFS exempts Harpoon category vessels 
from the prohibition on spotter aircraft use. Other than that 
exemption, the final rule remains as proposed. All measures in the 
proposed rule, except for the prohibition on the use of aircraft, were 
addressed in an earlier final rule (62 FR 30741, June 5, 1997). 
Additionally, NMFS issued an interim final rule that suspended the May 
15 deadline for switching permit categories for calendar year 1997 
until the remaining regulatory issues which could influence category 
selection were resolved and a new deadline set. Final quotas were 
published on June 30, 1997 (62 FR 35107) and the spotter aircraft issue 
is addressed by this final rule. As there are no remaining regulatory 
issues to be resolved that would influence category selection, vessel 
owners now have sufficient information to select an appropriate permit 
category for 1997. The deadline for switching permit categories for 
calendar year 1997 is set as July 28, 1997.

Classification

    This rule is published under the authority of ATCA, 16 U.S.C. 971 
et seq. The Assistant Administrator has determined that the regulations 
in this final rule are necessary for management of the Atlantic tuna 
fisheries.
    NMFS prepared an EA for this final rule with a finding of no 
significant impact on the human environment. In addition, an RIR was 
prepared with a finding of no significant impact.
    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 that the proposed rule, if adopted, 
would not have a significant economic impact on a substantial number of 
small entities, therefore no Regulatory Flexibility Analysis was 
prepared. That certification covered not only the proposed spotter 
aircraft prohibition, but the other provisions of the rule published in 
an earlier final rule (62 FR 30741, June 5, 1997).
    During the comment period, NMFS received comments from the public 
that the proposal to ban the use of spotter aircraft in all but the 
Purse Seine category exceeded the threshold for significant impact on a 
substantial number of small entities. The aerial fish spotting business 
is only a small portion (less than 2 percent) of the small businesses 
in the ABT fishing sector, and for that matter, the aerial fish 
spotting business is only a very small portion of the small business 
aviation sector. While there may be some loss of revenue to small 
aircraft businesses that engage in fish spotting activities, no 
evidence is available to NMFS that the majority of revenues to these 
businesses is from ABT fish spotting. Further, the greater part of the 
spotter aircraft activity currently occurs in the Purse Seine and 
Harpoon categories. By exempting these two categories from the 
prohibition on the use of spotter aircraft, the impact of the 
prohibition on aerial fish spotters is substantially lessened.
    Accordingly, there is no basis to change the conclusion of that the 
spotter aircraft prohibition provision of the rule will not have a 
significant economic impact on a substantial number of

[[Page 38487]]

businesses. Thus, a Final Regulatory Flexibility Analysis was not 
prepared.
    This final rule has been determined to be not significant for 
purposes of E.O. 12866.
    The AA has determined that there is good cause to waive partially 
the 30-day delay in the effective date normally required by 5 U.S.C. 
Sec. 553(d). The fishery is currently underway and further delay in 
implementing the prohibition on the use of spotter aircraft in 
assisting ABT vessels in other than the Harpoon and Purse Seine 
categories would be contrary to the public interest by reducing the 
likelihood of achieving the desired effects of this rule. The desired 
effects of the rule are to extend the season to provide improved 
scientific monitoring and fishing opportunities for the rod-and-reel 
fisheries. Further, providing a 30-day delay in the effective date is 
unnecessary since the only act necessary to come into compliance with 
the prohibition is to cease ABT aircraft spotting activity. Therefore 
the ban is effective July 14, 1997. A two-week period for changing 
permit categories is necessary for vessel operators to gather relevant 
information, decide on the appropriate category, and submit an 
application for the category change. Given NMFS' ability to rapidly 
communicate these rule changes to fishing interests through the FAX 
network and NOAA weather radio, NMFS feels it is sufficient to 
implement the spotter aircraft prohibition immediately and allow 
fourteen days in which to make requests for permit category changes.

List of Subjects in 50 CFR Part 285

    Fisheries, Fishing, Penalties, Reporting and recordkeeping 
requirements, Treaties.

    Dated: July 14, 1997.
Rolland A. Schmitten,
Assistant Administrator for Fisheries, National Marine Fisheries 
Service.
    For the reasons set out in the preamble 50 CFR part 285 is amended 
as follows:

PART 285--ATLANTIC TUNA FISHERIES

    1. The authority citation for part 285 continues to read as 
follows:

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

    2. In Sec. 285.2, definition for ``Aircraft'' is added to read as 
follows:


Sec. 285.2  Definitions.

* * * * *
     Aircraft means any contrivance used for flight in air.
* * * * *
    3. In Sec. 285.21, paragraph (b)(7) is revised to read as follows:


Sec. 285.21  Vessel Permits.

* * * * *
    (b) * * *
    (7) Except for purse seine vessels for which a permit has been 
issued under this section, an owner may change the category of the 
vessels's Atlantic tunas permit to another category by application on 
the appropriate form to NMFS or by dialing 1-888-USA-TUNA before the 
specified deadline. After the deadline, the vessel's permit category 
may not be changed to another category for the remainder of the 
calendar year, regardless of any change in the vessel's ownership. For 
1997, the deadline is July 28, 1997. In years after 1997, the deadline 
for category changes is May 15.
* * * * *
    4. In Sec. 285.31, paragraph (a)(40) is added to read as follows:


Sec. 285.31  Prohibitions.

* * * * *
    (a) * * *
    (40) Fish for, catch, possess or retain, or attempt to fish for, 
catch, possess or retain Atlantic bluefin tuna by means, aid, or use of 
any aircraft, unless holding a valid permit in the Harpoon or Purse 
Seine category under Sec. 285.21.
* * * * *
    5. In Sec. 285.33, the heading is revised, the existing paragraph 
is designated as paragraph (a), and paragraph (b) is added to read as 
follows:


Sec. 285.33  Gear restrictions.

* * * * *
    (b) Aircraft. Other than for a vessel holding a valid permit in the 
Harpoon or Purse Seine category under Sec. 285.21(a), locating, fishing 
for, catching, taking, retaining or possessing ABT by means, aid, or 
use of any aircraft is prohibited.
[FR Doc. 97-18912 Filed 7-14-97; 4:13 pm]
BILLING CODE 3510-22-F