[Federal Register Volume 63, Number 51 (Tuesday, March 17, 1998)]
[Rules and Regulations]
[Pages 13009-13012]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-6857]


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DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

50 CFR Part 679

[Docket No. 971124274-8052-02; I.D. 110597A]
RIN 0648-AH67


Fisheries of the Exclusive Economic Zone Off Alaska; Forage Fish 
Species Category

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

ACTION: Final rule.

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SUMMARY: NMFS issues regulations to implement Amendment 36 to the 
Fishery Management Plan for the Groundfish Fishery of the Bering Sea 
and Aleutian Islands Area and Amendment 39 to the Fishery Management 
Plan for Groundfish of the Gulf of Alaska (FMPs). This action creates a 
forage fish species category in both FMPs and implements associated 
management measures. The intended effect of this action is to prevent 
the development of a commercial directed fishery for forage fish, which 
are a critical food source for many marine mammal, seabird, and fish 
species. This action is necessary to conserve and manage the forage 
fish resource off Alaska and to further the goals and objectives of the 
FMPs. In addition, this action includes a technical amendment removing 
a date that is no longer applicable.

DATES: Effective April 16, 1998.

ADDRESSES: Copies of Amendments 36 and 39 and the Environmental 
Assessment/Regulatory Impact Review (EA/RIR) prepared for Amendments 36 
and 39 are available from the Sustainable Fisheries Division, Alaska 
Region, NMFS, P.O. Box 21668, Juneau, AK 99802, Attn: Lori J. Gravel, 
or by calling the Alaska Region, NMFS, at 907-586-7228.

FOR FURTHER INFORMATION CONTACT: Kent Lind, 907-586-7228 or 
[email protected]

SUPPLEMENTARY INFORMATION: The domestic groundfish fisheries in the 
exclusive economic zone of the Bering Sea and Aleutian Islands 
Management Area (BSAI) and of the Gulf of Alaska

[[Page 13010]]

(GOA) are managed by NMFS under the FMPs. The FMPs were prepared by the 
North Pacific Fishery Management Council (Council) under the Magnuson-
Stevens Fishery Conservation and Management Act (Magnuson-Stevens Act). 
Regulations governing the groundfish fisheries of the BSAI and GOA 
appear at 50 CFR part 679, and general regulations governing U.S. 
fisheries appear at 50 CFR part 600.
    A notice of availability of amendments 36 and 39 was published on 
November 12, 1997 (62 FR 60682), with comments on the FMP amendments 
invited through January 12, 1998. A proposed rule to implement 
amendments 36 and 39 was published in the Federal Register on December 
12, 1997 (62 FR 65402), with comments invited through January 26, 1998. 
One letter of comment was received and is summarized and responded to 
in the Response to Comments section. Additional information on this 
action is contained in the preamble to the proposed rule and in the EA/
RIR (See ADDRESSES). Upon reviewing amendments 36 and 39, the 
Administrator, Alaska Region, NMFS, has determined that amendments 36 
and 39 are necessary for the conservation and management of the 
groundfish fisheries of the BSAI and GOA and are consistent with the 
Magnuson-Stevens Act and with other applicable laws.

Response to Comments

    The following comment summarizes the one letter received on the FMP 
amendments and proposed rule:
    Comment. The Department of Interior believes that managing forage 
fish, by establishing a separate category for these species, will 
benefit the marine ecosystems of the North Pacific. The Department of 
the Interior supports approval of the amendments as well as issuance of 
the implementing regulations which would prohibit directed fishing on 
forage fish species, and the sale, barter, trade, or processing of 
forage fish.
    Response. NMFS agrees with the conclusions of the Department of 
Interior and has approved amendments 36 and 39.

Elements of the Final Rule

    The following is a summary of the main elements of the final rule.

Forage Fish Species Category

    The rule defines forage fish species to mean all species of the 
following families:
    Osmeridae (eulachon, capelin, and other smelts),
    Myctophidae (lanternfishes),
    Bathylagidae (deep-sea smelts),
    Ammodytidae (Pacific sand lance),
    Trichodontidae (Pacific sandfish),
    Pholidae (gunnels),
    Stichaeidae (pricklebacks, warbonnets, eelblennys, cockscombs and 
shannys),
    Gonostomatidae (bristlemouths, lightfishes, and anglemouths), and 
the Order
    Euphausiacea (krill).
    These species have been grouped together because they are 
considered to be primary food resources for other marine animals and 
they have the potential to be the targets of a commercial fishery.

Affected Vessels and Processors

    The requirements of the rule apply to all vessels fishing for 
groundfish in the Federal waters of the BSAI or GOA or processing 
groundfish harvested in the Federal waters of the BSAI or GOA. The rule 
does not apply to fishing for forage fish species within State waters.

Prohibition on Directed Fishing

    The rule prohibits directed fishing for forage fish at all times in 
the Federal waters of the BSAI and GOA. The rule establishes maximum 
retainable bycatch (MRB) percentage of 2 percent for forage fish, 
meaning that vessels fishing for groundfish may retain a quantity of 
forage fish equal to no more than 2 percent of the round weight or 
round-weight equivalent of groundfish species open to directed fishing 
that are retained on board the vessel during a fishing trip. NMFS data 
indicate that the aggregate percentage of forage fish incidentally 
caught in current groundfish fisheries rarely exceeds 2 percent, and 
many vessels rarely or never encounter catch of forage fish species. 
Consequently, bycatch of forage fish species is not considered a 
problem in the groundfish fisheries off Alaska, and the 2-percent MRB 
is unlikely to result in increased discards of forage fish species.

Harvest Quotas

    Insufficient information exists upon which to specify a total 
allowable catch amount (TAC) for forage fish species. Therefore, this 
action does not establish procedures for specifying an annual TAC for 
forage fish species. However, by establishing a new species category 
for forage fish, NMFS will be able to collect additional data on forage 
fish from vessel logbooks, weekly production reports, and observer 
reports. This information may be used to evaluate the need for and 
appropriateness of other management measures for forage fish species.

Limits on Sale, Barter, Trade or Processing

    The rule prohibits the sale, barter, trade, or processing of forage 
fish species by vessels fishing for groundfish in the Federal waters of 
the BSAI or GOA or processing groundfish harvested in the BSAI or GOA, 
except that retained catch of forage fish species not exceeding the 2-
percent MRB may be processed into fishmeal and sold. The rule allows 
fishmeal processing of forage fish retained under the 2-percent MRB 
amount to prevent undue burdens on operations that process unsorted 
processing waste into fishmeal. Industry representatives have indicated 
that separating small quantities of forage fish from the volumes of 
fish and fish waste that typically enter fishmeal plants would be 
nearly impossible. The small volumes of fishmeal production allowed 
under this rule are not expected to provide an incentive for vessels to 
target on forage fish through ``topping off'' activity.
    This rule does not apply to onshore processors due to limitations 
of the authority of the Secretary of Commerce under the Magnuson-
Stevens Act. At the June 1997 Council meeting, the State of Alaska 
indicated that it intends to proceed with parallel forage fish 
regulations to restrict the harvest of forage fish within State waters 
and the processing of forage fish by onshore processors.

Changes From the Proposed Rule

    In the proposed change to Table 2 to 50 CFR Part 679, the order 
Euphausiacea was incorrectly identified as a family. This error has 
been corrected in the final rule. No other changes have been made in 
the final rule.
    A technical amendment is made to Sec. 679.20(c)(5) by deleting a 
date that is no longer applicable.

Classification

    At the proposed rule stage, 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 this rule would not have a significant economic impact on a 
substantial number of small entities. No comments were received 
regarding this certification. As a result, a regulatory flexibility 
analysis was not prepared.
    An informal consultation under the Endangered Species Act was 
concluded for amendments 36 and 39 on July 11,

[[Page 13011]]

1997. As a result of the informal consultation, the Regional 
Administrator determined that fishing activities under this rule are 
not likely to adversely affect endangered or threatened species or 
critical habitat.
    This final rule has been determined to be not significant for the 
purposes of E.O. 12866.

List of Subjects in 50 CFR Part 679

    Alaska, Fisheries, Reporting and recordkeeping requirements.

    Dated: March 10, 1998.
David L. Evans,
 Deputy Assistant Administrator for Fisheries, National Marine 
Fisheries Service.
    For the reasons set out in the preamble, 50 CFR part 679 is amended 
as follows:

PART 679--FISHERIES OF THE EXCLUSIVE ECONOMIC ZONE OFF ALASKA

    1. The authority citation for 50 CFR part 679 continues to read as 
follows:

    Authority: 16 U.S.C. 773 et seq ., 1801 et seq., and 3631 et 
seq.

    2. In Sec. 679.2, the definition of ``forage fish'' is added in 
alphabetical order to read as follows:


Sec. 679.2  Definitions.

* * * * *
    Forage fish means all species of the following families:
    (1) Osmeridae (eulachon, capelin and other smelts),
    (2) Myctophidae (lanternfishes),
    (3) Bathylagidae (deep-sea smelts),
    (4) Ammodytidae (Pacific sand lance),
    (5) Trichodontidae (Pacific sandfish),
    (6) Pholidae (gunnels),
    (7) Stichaeidae (pricklebacks, warbonnets, eelblennys, cockscombs 
and shannys),
    (8) Gonostomatidae (bristlemouths, lightfishes, and anglemouths), 
and
    (9) The Order Euphausiacea (krill).
* * * * *
    3. In Sec. 679.20, paragraph (c)(5) is amended by removing the 
phrase ``(Applicable through December 31, 1996)'' and a new paragraph 
(i) is added as follows:


Sec. 679.20  General limitations.

* * * * *
    (i) Forage fish--(1) Definition. See Sec. 679.2.
    (2) Applicability. The provisions of Sec. 679.20(i) apply to all 
vessels fishing for groundfish in the BSAI or GOA, and to all vessels 
processing groundfish harvested in the BSAI or GOA.
    (3) Closure to directed fishing. Directed fishing for forage fish 
is prohibited at all times in the BSAI and GOA.
    (4) Limits on sale, barter, trade, and processing. The sale, 
barter, trade, or processing of forage fish is prohibited, except as 
provided in paragraph (i)(5) of this section.
    (5) Allowable fishmeal production. Retained catch of forage fish 
not exceeding the maximum retainable bycatch amount may be processed 
into fishmeal for sale, barter, or trade.
    4. In Sec. 679.22, paragraph (c) is revised to read as follows:


Sec. 679.22  Closures.

* * * * *
    (c) Directed fishing closures. See Sec. 679.20(d) and 
Sec. 679.20(i).
* * * * *


Table 2 to Part 679  [Amended]

    5. Table 2 to 50 CFR part 679 is amended by adding species codes 
207 Gunnels; 208 Pricklebacks, warbonnets, eelblennys, cockscombs and 
shannys (family Stichaeidae); 209 Bristlemouths, lightfishes, and 
anglemouths (family Gonostomatidae); 210 Pacific sandfish; 772 
Lanternfishes; 773 Deep-sea smelts (family Bathylagidae); 774 Pacific 
sand lance; and 800 Krill (order Euphausiacea); in numerical order as 
follows:

                   Table 2 to Part 679.--Species Codes                  
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                   Code                                Species          
------------------------------------------------------------------------
                                                                        
*                  *                  *                  *              
                  *                  *                  *               
Group Codes:                                                            
                                                                        
*                  *                  *                  *              
                  *                  *                  *               
    207...................................  Gunnels.                    
    208...................................  Pricklebacks, warbonnets,   
                                             eelblennys, cockscombs and 
                                             shannys (family            
                                             Stichaeidae).              
    209...................................  Bristlemouths, lightfishes, 
                                             and anglemouths (family    
                                             Gonostomatidae).           
    210...................................  Pacific sandfish.           
                                                                        
*                  *                  *                  *              
                  *                  *                  *               
    772...................................  Lanternfishes.              
    773...................................  Deep-sea smelts (family     
                                             Bathylagidae).             
    774...................................  Pacific sand lance.         
    800...................................  Krill (order Euphausiacea). 
                                                                        
*                  *                  *                  *              
                  *                  *                  *               
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Tables 10 and 11 to Part 679  [Amended]

    6. Tables 10 and 11 to 50 CFR part 679 are amended by adding a 
column for aggregate forage fish as follows:
    In Table 10 to 50 CFR part 679, a column for ``Aggregate Forage 
Fish'' is added between columns ``Atka mackerel'' and ``Other 
species,'' and footnote 5 is added to read ``Forage fish are defined at 
Sec. 679.2.'' Table 10, as revised, reads as follows:

[[Page 13012]]



                                                                        Table 10.--Gulf of Alaska Retainable Percentages                                                                        
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                                                                                                                         Bycatch species 1                                                      
                                                                 -------------------------------------------------------------------------------------------------------------------------------
                                                                                                                                                                              Aggregate         
                                                                  Pollock  Pacific    Deep      Rex    Flathead   Shallow   Arrow-  Sablefish  Aggregated    DSR      Atka      forage    Other 
                                                                             cod    flatfish    sole     sole    flatfish   tooth              rockfish 2    SEEO   mackerel    fish 5   species
-------------------------------------------------------------------------------------------------------------------------------------------------------------\4\--------------------------------
Basis Species                                                                                                                                                                                   
    Pollock.....................................................     3 na       20        20       20        20        20       35         1           5        10        20         2        20
    Pacific cod.................................................       20     3 na        20       20        20        20       35         1           5        10        20         2        20
    Deep flatfish...............................................       20       20      3 na       20        20        20       35         7          15         1        20         2        20
    Rex sole....................................................       20       20        20       20      3 na        20       35         7          15         1        20         2        20
    Flathead sole...............................................       20       20        20       20      3 na        20       35         7          15         1        20         2        20
    Shallow flatfish............................................       20       20        20       20        20      3 na       35         1           5        10        20         2        20
    Arrowtooth..................................................        5        5         0        0         0         0     3 na         0           0         0         0         2        20
    Sablefish...................................................       20       20        20       20        20        20       35      3 na          15         1        20         2        20
    Pacific Ocean perch.........................................       20       20        20       20        20        20       35         7          15         1        20         2        20
    Shortraker/rougheye.........................................       20       20        20       20        20        20       35         7          15         1        20         2        20
    Other rockfish..............................................       20       20        20       20        20        20       35         7          15         1        20         2        20
    Northern rockfish...........................................       20       20        20       20        20        20       35         7          15         1        20         2        20
    Pelagic rockfish............................................       20       20        20       20        20        20       35         7          15         1        20         2        20
    DSR-SEEO....................................................       20       20        20       20        20        20       35         7          15      3 na        20         2        20
    Thornyhead..................................................       20       20        20       20        20        20       35         7          15         1        20         2        20
    Atka mackerel...............................................       20       20        20       20        20        20       35         1           5        10      3 na         2        20
    Other species...............................................       20       20        20       20        20        20       35         1           5        10        20         2      3 na
    Aggregated amount non-groundfish species....................       20       20        20       20        20        20       35         1           5        10        20         2       20 
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\1\ For definition of species, see Table 1 of the Gulf of Alaska groundfish specifications.                                                                                                     
\2\ Aggregated Rockfish means any rockfish except in the Southeast Outside District where demersal shelf rockfish (DSR) is a separate category.                                                 
\3\ na=not applicable.                                                                                                                                                                          
\4\ SEEO=Southeast Outside District.                                                                                                                                                            
\5\ Forage fish are defined at Sec.  679.2.                                                                                                                                                     

    In Table 11 to 50 CFR part 679, a column for ``Aggregate Forage 
Fish'' is added between columns ``Squid'' and ``Other species,'' 
footnote 3 is redesignated as footnote 4, and a new footnote 3 is added 
to read ``Forage fish are defined at Sec. 679.2.'' Table 11, as 
revised, reads as follows:

                                                        Table 11.--Bering Sea and Aleutian Islands Management Area Retainable Percentages                                                       
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                                                                                                                 Bycatch species 1                                                              
                                                  ----------------------------------------------------------------------------------------------------------------------------------------------
                                                                                                                                                                              Aggregate         
                                                   Pollock  Pacific    Atka    Arrowtooth  Yellowfin    Other     Rock   Flathead  Greenland  Sablefish  Aggregated   Squid     forage    Other 
                                                              cod    mackerel                 sole    flatfish    sole     sole      turbot              rockfish 2             fish 3   species
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
Basis species1                                                                                                                                                                                  
    Pollock......................................     4 na       20        20         35         20         20       20        20         1          1           5        20         2        20
    Pacific cod..................................       20       na        20         35         20         20       20        20         1          1           5        20         2        20
    Atka mackerel................................       20       20        na         35         20         20       20        20         1          1           5        20         2        20
    Arrowtooth...................................        0        0         0         na          0          0        0         0         0          0           0         0         2         0
    Yellowfin sole...............................       20       20        20         35         na         35       35        35         1          1           5        20         2        20
    Other flatfish...............................       20       20        20         35         35         na       35        35         1          1           5        20         2        20
    Rock sole....................................       20       20        20         35         35         35       na        35         1          1           5        20         2        20
    Flathead sole................................       20       20        20         35         35         35       35        na        35         15          15        20         2        20
    Greenland turbot.............................       20       20        20         35         20         20       20        20        na         15          15        20         2        20
    Sablefish....................................       20       20        20         35         20         20       20        20        35         na          15        20         2        20
    Other rockfish...............................       20       20        20         35         20         20       20        20        35         15          15        20         2        20
    Other red rockfish-BS........................       20       20        20         35         20         20       20        20        35         15          15        20         2        20
    Pacific Ocean perch..........................       20       20        20         35         20         20       20        20        35         15          15        20         2        20
    Sharpchin/Northern-AI........................       20       20        20         35         20         20       20        20        35         15          15        20         2        20
    Shortraker/Rougheye-AI.......................       20       20        20         35         20         20       20        20        35         15          15        20         2        20
    Squid........................................       20       20        20         35         20         20       20        20         1          1           5      4 na         2        20
    Other species................................       20       20        20         35         20         20       20        20         1          1           5        20         2      4 na
    Aggregated amount non-groundfish species.....       20       20        20         35         20         20       20        20         1          1           5        20         2       20 
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\1\ For definition of species, see Table 1 of the Bering Sea and Aleutian Islands groundfish specifications.                                                                                    
\2\ Aggregated rockfish of the genera Sebastes and Sebastolobus.                                                                                                                                
\3\ Forage fish are defined at Sec.  679.2.                                                                                                                                                     
\4\ na = not applicable.                                                                                                                                                                        

[FR Doc. 98-6857 Filed 3-16-98; 8:45 am]
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