[Federal Register Volume 63, Number 71 (Tuesday, April 14, 1998)]
[Rules and Regulations]
[Pages 18144-18147]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-9766]


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DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

50 CFR Part 622

[Docket No. 980408088-8088-01; I.D. 040798A]
RIN 0648-AK98


Fisheries of the Caribbean, Gulf of Mexico, and South Atlantic; 
Reef Fish Fishery of the Gulf of Mexico; Red Snapper Management 
Measures

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

ACTION: Interim rule; request for comments.

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SUMMARY: This interim rule implements changes to the availability of 
the recreational red snapper quota and the procedures that allow the 
recreational and commercial quotas to be taken. Specifically, it makes 
available 2.94 million-lb (1.33 million-kg) of the recreational quota 
to recreational fishermen beginning January 1, 1998; reserves 3.12 
million lb (1.42 million kg) of the red snapper total allowable catch 
(TAC), which may be made available on September 1, 1998; establishes a 
procedure for releasing the reserved TAC on September 1, 1998, based on 
observed efficiency of BRDs used in shrimp trawls and apportioned 
between the recreational and commercial fisheries; and reduces the 5-
fish red snapper bag limit to 4 fish. The 3.06 million-lb (1.39 
million-kg) commercial quota was available on February 1, 1998. The 
intended effect is to reduce overfishing of red snapper in the Gulf of 
Mexico.

DATES: This rule is effective May 14, 1998 through October 13, 1998 
except for the suspension of Secs. 622.34(l) and 622.39(b)(1)(iii) and 
the addition of Secs. 622.34(m) and 622.39(b)(1)(vi), which are 
effective April 29, 1998, through October 13, 1998 and except for the 
suspension of Sec. 622.42(a)(2) and the addition of Sec. 622.42(g)(2), 
which are effective April 14, 1998, through October 13, 1998. Comments 
must be received no later than May 14, 1998.

ADDRESSES: Comments on this interim rule must be mailed to, and copies 
of documents supporting this action may be obtained from, the Southeast 
Regional Office, NMFS, 9721 Executive Center Drive N., St. Petersburg, 
FL 33702.

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


[[Page 18145]]


SUPPLEMENTARY INFORMATION: The reef fish fishery of the Gulf of Mexico 
is managed under the Fishery Management Plan for the Reef Fish 
Resources of the Gulf of Mexico (FMP). The FMP was prepared by the Gulf 
of Mexico Fishery Management Council (Council) and is implemented under 
the authority of the Magnuson-Stevens Fishery Conservation and 
Management Act (Magnuson-Stevens Act) by regulations at 50 CFR part 
622.
    The TAC for red snapper in the Gulf of Mexico EEZ is 9.12 million 
lb. The FMP divides the TAC as a commercial quota (51 percent of TAC) 
and a recreational quota (49 percent of TAC). This interim rule (1) 
makes available a 2.94 million-lb (1.33 million-kg) apportionment of 
the TAC to recreational fishermen beginning January 1, 1998; (2) 
reserves 3.12 million lb (1.42 million kg) of the TAC, which may be 
made available on September 1, 1998; (3) establishes the procedure for 
releasing the reserved TAC on September 1, 1998, based on observed 
efficiency of BRDs used in shrimp trawls; and (4) reduces the 5-fish 
bag limit to 4 fish. The 3.06 million-lb (1.39 million-kg) commercial 
quota was made available on February 1, 1998.
    NMFS plans a major research effort beginning May 1998, to provide 
an estimate of BRD bycatch reduction under operational conditions prior 
to September 1, 1998. If BRDs reduce shrimp trawl-induced mortality of 
juvenile red snapper by 50 percent or less, no reserve will be 
released. If BRDs reduce shrimp trawl- induced mortality of juvenile 
red snapper by 60 percent or greater, the entire 3.12 million lb (1.42 
million kg) reserve will be released on September 1, 1998. If BRDs 
reduce shrimp trawl-induced mortality of juvenile red snapper by more 
than 50 but less than 60 percent, a portion of the reserve will be 
released proportional to the efficiency of the BRDs. These measures are 
necessary to prevent overfishing and rebuild red snapper to a spawning 
potential ratio (SPR) of 20 percent by 2019, as required by the FMP.
    The Council, at its January 1998 meeting, recommended that NMFS 
continue a status quo TAC of 9.12 million lb (4.14 million kg). The 
Council also voted to maintain the current 5-fish bag limit for the 
recreational fishery and to reduce to zero the bag limit for the 
captain and crew of charter vessels and headboats. The Council intended 
that implementation of this latter measure would be contingent upon the 
continuation of the 9.12 million-lb (4.14 million-kg) TAC.
    The Council's recommendation for a status quo TAC was made 
following a review of the 1997 NMFS red snapper stock assessment and 
findings from a recent Congressionally mandated peer review of the 
science and management of red snapper. The peer review concluded that 
red snapper are seriously overfished, shrimp trawl bycatch of juvenile 
red snapper needs to be reduced, and the TAC should be reduced to no 
more than 6.0 million lb (2.7 million kg) if the resource is to recover 
to the FMP's rebuilding target of 20-percent SPR by 2019. The peer 
review also strongly recommended that NMFS initiate a bycatch 
monitoring program.
    The 1997 NMFS stock assessment noted that a 20-percent SPR could be 
achieved with a 9.12 million lb (4.14 million kg) TAC if BRDs achieved 
a bycatch reduction efficiency of 60 percent or greater. Efficiencies 
of 60 percent or greater have been achieved under experimental 
conditions according to a NMFS gear specialist who testified at the 
Council's January meeting, although 50 percent is a more reasonable 
expectation of the operational BRD performance level, especially when 
compliance and BRD release mortalities are considered. The Council's 
recommendation for a status quo TAC was based primarily on an 
assumption that the bycatch mortality of juvenile red snapper could be 
reduced by 60 percent or more through the mandatory use of BRDs. The 
final rule implementing Amendment 9 to the Fishery Management Plan for 
the Shrimp Fishery of the Gulf of Mexico requires the use of BRDs in 
most shrimp trawls.
    NMFS intends to test this assumption by initiating a major research 
effort, beginning in May 1998, to obtain operational estimates of BRD 
efficiency while towing commercial shrimp trawls in areas when juvenile 
red snapper are present. Observers, logbooks, and vessel monitoring 
systems will be used on selected vessels to monitor the use of BRDs and 
to obtain estimates of bycatch in Federal waters of the Gulf of Mexico. 
In addition, this research initiative will address some of the concerns 
expressed in the peer review regarding improved estimates of bycatch, 
new information on discard mortalities from fishing vessels, and 
refined data on age composition of red snapper to aid in subsequent 
stock assessments.

Reservation of TAC

    Under existing regulations, the commercial quota for red snapper in 
the Gulf of Mexico is split into two periods: the first commencing at 
noon on February 1 with 3.06 million lb (1.39 million kg) of the annual 
quota available and the second commencing at noon on September 1 with 
the remainder of the annual quota available. During the commercial 
season, the red snapper commercial fishery opens at noon on the first 
of each month and closes at noon on the 15th of each month, until the 
applicable commercial quotas are reached. The recreational fishery is 
open from January 1 until its quota is reached.
    This interim rule (1) makes available a 2.94 million-lb (1.33 
million-kg) apportionment to recreational fishermen beginning January 
1, 1998; (2) reserves 3.12 million lb (1.42 million kg) of the red 
snapper TAC, which may be made available on September 1, 1998; and (3) 
establishes the procedure for releasing the reserved TAC on September 
1, 1998, based on observed efficiency of BRDs used in shrimp trawls and 
apportioned between the recreational and commercial red snapper 
fisheries. The 3.06 million-lb (1.39 million-kg) commercial quota was 
made available on February 1, 1998. If BRDs reduce shrimp trawl- 
induced mortality of juvenile red snapper by 60 percent or more, the 
entire 3.12 million-lb (1.42 million-kg) reserve will be made available 
on September 1, 1998, with 1.59 million lb (0.72 million kg) 
apportioned to commercial fishermen and 1.53 million lb (0.69 million 
kg) apportioned to recreational fishermen. If BRDs reduce shrimp trawl-
induced mortality of juvenile red snapper by 50 percent or less, no 
reserve will be released. If BRDs reduce shrimp trawl-induced mortality 
of juvenile red snapper by more than 50 percent, but by less than 60 
percent, for each one percentage point increase in bycatch reduction 
above 50 percent, 0.159 million lb (0.715 million kg) of reserve will 
be released to commercial fishermen and 0.153 million lb (0.069 million 
kg) of reserve will be released to recreational fishermen.

Reduction of Bag Limit

    The 1997 recreational red snapper fishery was closed on November 
27, 1997, to prevent the fishery from exceeding its quota. However, 
only one of the five Gulf coastal states implemented compatible 
closures in state waters after the Federal closure. Most states believe 
that the recreational harvest should not be controlled by quotas; 
rather, they believe it should be controlled by bag limits and similar 
measures. A more restrictive bag limit would minimize the possibility 
of a recreational closure and maximize the compatibility of Federal 
regulations

[[Page 18146]]

with state fishery management measures, thereby helping to prevent 
quota overruns and overfishing. Assuming the full availability of the 
9.12 million-lb (4.14 million-kg) TAC in 1998, a 4-fish bag limit 
should extend the recreational season throughout the year; with 6.0 
million lb (2.7 million kg) available, the season should extend into 
October 1998. Additionally, a 4-fish bag limit should enable charter 
and headboat operators to continue to attract customers. As most of the 
recreational trips occur during the warmer summer months, the 4-fish 
bag limit also ensures that the recreational fishery will remain open 
during the peak fishing months with either 6.0 or 9.12 million lb (2.7 
or 4.14 million kg) available.
    NMFS prepared an evaluation of the regulatory impacts of the 
interim measures. For the commercial fishery, limiting harvest levels 
to 3.06 million lb (1.39 million kg) is expected to result in a short-
term reduction in profit of about $1.5 million in the first year, 
assuming no shift in effort to other species. For the recreational 
fishery, NMFS estimated the number of red snapper fishing trips 
expected to be affected by various bag limits with only 6.0 million lb 
(2.7 million kg) of the TAC available. With a 5-fish bag limit, about 
27 percent or 126,000 red snapper trips would be affected due to an 
early closure of the season. A 4-fish bag limit reduces this effect to 
17 percent. Some of these trips may be shifted to other species; 
therefore, the effect may not equate to cancellation of 17 percent of 
the trips. If the bag limit were reduced to three fish, only 8 percent 
of the trips would be affected; and with a reduction to two fish, no 
trips would be affected, assuming all the trips were still conducted. 
However, some charter boat operators expressed concerns that any 
reduction below a bag limit of three fish would most likely result in 
widespread cancellation of trips. Unfortunately, none of the charter 
boat operators were willing to project the effect of any of the other 
considered reductions, other than commenting that the full 5-fish bag 
limit was needed to ensure no trip cancellations.
    The NMFS Southeast Fisheries Science Center has determined that 
this interim rule is based on the best available scientific 
information. Given the determination of overfishing regarding red 
snapper, this interim rule is consistent with section 305(c) of the 
Magnuson-Stevens Act.
    NMFS finds that the timely regulatory action provided by this 
interim rule is necessary to reduce overfishing of red snapper in the 
Gulf of Mexico. NMFS issues this interim rule, effective for not more 
than 180 days, as authorized by section 305(c) of the Magnuson-Stevens 
Act. This interim rule may be extended for an additional 180 days, 
provided that the public has had an opportunity to comment on the 
interim rule. Public comments on this interim rule will be considered 
in determining whether to maintain or extend this rule to address 
overfishing of red snapper.

Classification

    The Assistant Administrator for Fisheries, NOAA (AA), has 
determined that this rule is necessary to reduce overfishing of red 
snapper in the Gulf of Mexico and is consistent with the Magnuson-
Stevens Act and other applicable laws.
    This interim rule has been determined to be not significant for 
purposes of E.O. 12866.
    Because prior notice and an opportunity for public comment are not 
required to be provided for this rule by 5 U.S.C. 553 or any other law, 
the analytical requirements of the Regulatory Flexibility Act, 5 U.S.C. 
601 et seq., are inapplicable.
    NMFS prepared economic analyses of the interim rule. Copies are 
available (see ADDRESSES).
    A delay in action to reduce overfishing increases the likelihood of 
a loss of long-term productivity in the red snapper fishery of the Gulf 
of Mexico and increases the probable need for more severe restrictions 
in the future. The public is aware of the need to reduce the bag limit 
and to reduce the TAC and the associated recreational and commercial 
quotas if BRDs are not sufficiently effective in reducing shrimp trawl-
induced mortality of juvenile red snapper; the public has had an 
initial opportunity to comment on these aspects at a Council meeting. 
Accordingly, pursuant to authority set forth at 5 U.S.C. 553(b)(B), the 
AA finds that these reasons constitute good cause to waive the 
requirement to provide prior notice and the opportunity for prior 
public comment, as such procedures would be contrary to the public 
interest.
    Pursuant to 5 U.S.C. 553(d)(3), the Assistant Administrator finds 
for good cause that a delay in the effective date of the measure to 
apportion the recreational quota and make available a 2.94 million-lb 
(1.33 million-kg) apportionment beginning January 1, 1998, to 
recreational fishermen is unnecessary. This apportionment does not 
impose any burden on any member of the recreational fishery, rather the 
apportionment is for the sole purpose of closing the fishery when the 
quota is reached. Therefore, it is unnecessary to delay the effective 
date of this measure for 30 days.
    Similarly, the need to implement the bag limit reduction in a 
timely manner to address the overfishing of red snapper and to minimize 
adverse effects of a recreational closure constitutes good cause under 
5 U.S.C. 553(d)(3) to waive the 30-day delay in effectiveness. However, 
the reduction of the red snapper bag limit could affect the decision by 
charter vessel/headboat clients to book fishing trips. Such bookings 
are routinely made well in advance of the actual trip. To provide 
sufficient notification of the reduction of the red snapper bag limit, 
particularly to charter vessel/headboat owners, operators, and clients, 
the reduction in the bag limit in Sec. 622.39(b)(1)(vi) of this rule 
and the corresponding addition of Sec. 622.34(m), which establishes the 
correct cross reference to Sec. 622.39(b)(1)(vi), will not be effective 
until April 29, 1998.

List of Subjects in 50 CFR Part 622

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

    Dated: April 8, 1998.
Rolland A. Schmitten,
Assistant Administrator for Fisheries, National Marine Fisheries 
Service.
    For the reasons set out in the preamble, 50 CFR part 622 is 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. 622.34, paragraph (l) is suspended and paragraph (m) is 
added to read as follows:


Sec. 622.34  Gulf EEZ seasonal and/or area closures.

* * * * *
    (m) Closures of the commercial fishery for red snapper. The 
commercial fishery for red snapper in or from the Gulf EEZ is closed 
from January 1 to noon on February 1 and thereafter from noon on the 
15th of each month to noon on the first of each succeeding month. All 
times are local times. During these closed periods, the possession of 
red snapper in or from the Gulf EEZ and in the Gulf on board a vessel 
for which a commercial permit for Gulf reef fish has been issued, as 
required under Sec. 622.4(a)(2)(v), without regard to where such red 
snapper were harvested, is limited to the bag and possession limits,

[[Page 18147]]

as specified in Sec. 622.39(b)(1)(vi) and (b)(2), respectively, and 
such red snapper are subject to the prohibition on sale or purchase of 
red snapper possessed under the bag limit, as specified in 
Sec. 622.45(c)(1). However, when the recreational quota for red snapper 
has been reached and the bag and possession limit has been reduced to 
zero, such possession during a closed period is zero.
    3. In Sec. 622.39, paragraph (b)(1)(iii) is suspended and paragraph 
(b)(1)(vi) is added to read as follows:


Sec. 622.39  Bag and possession limits.

* * * * *
    (b) * * *
    (1) * * *
    (vi) Red snapper--4.
* * * * *
    4. In Sec. 622.42, paragraph (a) is suspended and paragraph (g) is 
added to read as follows:


Sec. 622.42  Quotas.

* * * * *
    (g) Gulf reef fish--(1) Commercial quotas. The following quotas 
apply to persons who fish under commercial vessel permits for Gulf reef 
fish, as required under Sec. 622.4(a)(2)(v).
    (i) Red snapper--4.65 million lb (2.11 million kg), round weight, 
apportioned as follows:
    (A) 3.06 million lb (1.39 million kg) available at noon on February 
1 each year, subject to the closure provisions of Secs. 622.34(m) and 
622.43(a)(1)(i).
    (B) The remainder is held in reserve.
    (C) The Assistant Administrator may release all or any portion of 
the reserve specified in paragraph (g)(1)(i)(B) of this section 
effective September 1 by filing for publication a notification to that 
effect with the Office of the Federal Register. Determination of what 
portion, if any, of the reserve will be released will be based on the 
results of NMFS research regarding the effectiveness of BRDs in 
reducing shrimp trawl- induced mortality of juvenile red snapper. 
Release of reserve amounts will be determined as follows:
    (1) If BRDs reduce shrimp trawl-induced mortality of juvenile red 
snapper by 50 percent or less, none of the reserve specified in 
paragraph (g)(1)(i)(B) of this section will be released.
    (2) If BRDs reduce shrimp trawl-induced mortality of juvenile red 
snapper by 60 percent or greater, the entire reserve specified in 
paragraph (g)(1)(i)(B) of this section will be released, subject to the 
closure provisions of Secs. 622.34(m) and 622.43(a)(1)(i).
    (3) If BRDs reduce shrimp trawl-induced mortality of juvenile red 
snapper by more than 50 percent but less than 60 percent, for each one 
percentage point increase in bycatch mortality reduction within the 50 
to 60 percent range, an additional 0.159 million lb (0.072 million kg) 
of the reserve specified in paragraph (g)(1)(i)(B) of this section will 
be released, subject to the closure provisions of Secs. 622.34(m) and 
622.43(a)(1)(i). Fractional percentage point increases in bycatch 
mortality reduction will be prorated accordingly.
    (ii) Deep-water groupers (i.e., yellowedge grouper, misty grouper, 
warsaw grouper, snowy grouper, and speckled hind), and, after the quota 
for shallow-water grouper is reached, scamp, combined--1.60 million lb 
(0.73 million kg), round weight.
    (iii) Shallow-water groupers (i.e., all groupers other than deep-
water groupers, jewfish, and Nassau grouper), including scamp before 
the quota for shallow-water groupers is reached, combined--9.80 million 
lb (4.45 million kg), round weight.
    (2) Recreational quota for red snapper. The following quota applies 
to persons who harvest red snapper other than under commercial vessel 
permits for Gulf reef fish and the commercial quota specified in 
paragraph (a)(1)(i) of this section--4.47 million lb (2.03 million kg), 
round weight, apportioned as follows:
    (i) 2.94 million lb (1.33 million kg) available January 1 each 
year, subject to the closure provisions of Sec. 622.43(a)(1)(ii).
    (ii) The remainder is held in reserve.
    (iii) The Assistant Administrator may release all or any portion of 
the reserve specified in paragraph (g)(2)(ii) of this section effective 
September 1 by filing a notification for publication to that effect 
with the Office of the Federal Register. Determination of what portion, 
if any, of the reserve will be released will be based on the results of 
NMFS research regarding the effectiveness of BRDs in reducing shrimp 
trawl- induced mortality of juvenile red snapper. Release of reserve 
amounts will be determined as follows:
    (A) If BRDs reduce shrimp trawl-induced mortality of juvenile red 
snapper by 50 percent or less, none of the reserve specified in 
paragraph (g)(2)(ii) of this section will be released.
    (B) If BRDs reduce shrimp trawl-induced mortality of juvenile red 
snapper by 60 percent or greater, the entire reserve specified in 
paragraph (g)(2)(ii) of this section will be released, subject to the 
closure provisions of Sec. 622.43(a)(1)(ii).
    (C) If BRDs reduce shrimp trawl-induced mortality of juvenile red 
snapper by more than 50 percent but less than 60 percent, for each one 
percentage point increase in bycatch mortality reduction within the 50 
to 60 percent range, an additional 0.153 million lb (0.069 million kg) 
of the reserve specified in paragraph (g)(2)(ii) of this section will 
be released, subject to the closure provisions of 
Sec. 622.43(a)(1)(ii). Fractional percentage point increases in bycatch 
mortality reduction will be prorated accordingly.
[FR Doc. 98-9766 Filed 4-9-98; 11:41 am]
BILLING CODE 3510-22-F