[Federal Register Volume 64, Number 106 (Thursday, June 3, 1999)]
[Proposed Rules]
[Pages 29834-29837]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-14061]


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DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

50 CFR Part 660

[Docket No. 990304061-9150-02; I.D. 051099A]
RIN 0648-AL63


Fisheries off West Coast States and in the Western Pacific; 
Western Pacific Crustaceans Fisheries; Bank-Specific Harvest Guidelines

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

ACTION: Proposed rule; request for comments.

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SUMMARY: NMFS proposes a rule that would divide the Northwestern 
Hawaiian Islands (NWHI) lobster fishery into four fishing grounds and 
allow the Southwest Regional Administrator, NMFS (Regional 
Administrator) to allocate the annual NWHI harvest guideline among 
these grounds for the 1999 season and beyond. The four lobster fishing 
grounds would be: Necker Island, Maro Reef, Gardner Pinnacles, and the 
remaining NWHI lobster fishing grounds combined. Also, the proposed 
rule would allow lobster vessels carrying a NMFS-certified vessel 
monitoring system (VMS) unit to be within the boundary of a fishing 
grounds immediately after it is closed, provided the vessels are making 
steady progress to an open fishing grounds or back to port. This rule 
is intended to protect the lobster resources at each fishing ground, to 
provide better data on stocks, and to conserve the resource.

DATES: Written comments must be received on or before June 18, 1999.

ADDRESSES: Written comments should be sent to the Regional 
Administrator, 2570 Dole Street, Honolulu, Hawaii 96822 (attn: Al 
Katekaru). Copies of the regulatory impact review/initial regulatory 
flexibility analysis (RIR/IRFA) (revised May 1999) and environmental 
assessment are available

[[Page 29835]]

from Kitty Simonds, Executive Director, Western Pacific Fishery 
Management Council (Council), 1164 Bishop St. Suite 1400, Honolulu, HI 
96814. Comments regarding the collection-of-information requirements 
contained in this rule should be sent to the Regional Administrator and 
to the Office of Information and Regulatory Affairs, Office of 
Management and Budget (OMB), Washington, D.C. 20503 (Attention: NOAA 
Desk Officer).

FOR FURTHER INFORMATION CONTACT: Kitty Simonds at 808-522-8220 or Alvin 
Katekaru, Fishery Management Specialist, Pacific Islands Area Office, 
NMFS, at 808-973-2985.

SUPPLEMENTARY INFORMATION: Under the framework procedures of the 
Fishery Management Plan for the Crustaceans Fisheries of the Western 
Pacific Region (FMP) and its implementing regulations (50 CFR 660.53), 
the Council, at its 98th meeting, requested that the Regional 
Administrator initiate rulemaking to define the above four fishing 
grounds for the purpose of allocating the annual NWHI lobster harvest 
guideline among them.
    The procedure for determining the annual NWHI lobster harvest 
guideline, which was also employed during the 1998 lobster season, 
follows the methodology described in FMP Amendments 7 and 9. NMFS 
estimates the NWHI exploitable population of lobsters (spiny and 
slipper lobsters combined) at the beginning of the lobster season, 
which opens on July 1. The exploitable lobster population is the total 
number of lobsters, regardless of lobster size or reproductive 
condition, that are vulnerable to commercial fishing gear. Commercial 
logbook catch and effort data, provided by fishermen and augmented by 
NMFS scientific/observer and dealer pack-out information, are used to 
estimate the exploitable lobster population for the NWHI and the four 
fishing grounds.
    Under procedures established by this proposed rule, the Regional 
Administrator would be authorized to allocate the annual NWHI lobster 
harvest guideline between the four fishing grounds by applying the FMP-
specified constant harvest rate of 13 percent to the exploitable 
lobster population estimates for each of the four fishing grounds. The 
13-percent harvest rate is associated with a 10-percent risk of 
overfishing. NMFS would announce the annual total lobster harvest 
guideline, including the bank-specific harvest allocations, in the 
Federal Register by February 28 of each year (50 CFR 660.50). During 
the lobster season, NMFS would monitor the amount of lobsters harvested 
on a daily basis and, when the bank-specific harvest guideline for a 
lobster fishing ground is taken or projected to be taken, the Regional 
Administrator would announce, at least 24 hours in advance, closure of 
that fishing ground via electronic communication to each of the vessels 
participating in the fishery. The entire NWHI lobster fishery would 
close when all four fishing grounds are closed or on December 31 of 
that year, whichever occurs first.
    Under the proposed rule, the harvest of lobster and the possession 
of lobster traps on board a permitted lobster vessel would be 
prohibited within a lobster fishing ground when the harvest guideline 
allocation is determined to have been taken, unless the vessel has on 
board an operational NMFS-certified VMS unit and makes steady progress 
to another fishing ground that is open, or returns to port. This 
proposed provision, which was implemented on a trial basis during the 
1998 lobster season, is intended to encourage lobster vessels to carry 
a VMS unit to allow NMFS to monitor their location on a real-time 
basis. Also, vessels with a VMS unit would not be subject to a 
specified time by which their lobsters must be landed. Vessels not 
carrying an operational VMS unit would be required to land their 
lobsters within a specified time period, determined by the Regional 
Administrator, following closure of the fishery, as provided by current 
regulations (50 CFR 660.50).
    At its meeting on December 3, 1998, the Council considered a number 
of alternatives for permanently allocating the NWHI harvest guideline 
between fishing grounds (or banks). These were: (1) No action (return 
to a pre-1998, NWHI-wide harvest guideline program); (2) Necker Island, 
Maro Reef, Gardner Pinnacles, and all other grounds combined 
(Preferred, Partial and Bank-Specific Alternative), with the option of 
further defining subareas as new information becomes available; (3) 
Necker-Maro-Gardner-other grounds, which is similar to alternative 2, 
but with no option for defining new areas; (4) General area where 
several banks are combined into broad areas, i.e., combining Nihoa-
Necker-French Frigate Shoals-Gardner Pinnacles into one area, and NMFS 
would allocate a portion of the NWHI harvest guideline to each area; 
and (5) Full bank, with each of the 16 lobster banks assigned a harvest 
guideline to the extent data are available to estimate the exploitable 
lobster population for a bank. The Council concluded that the preferred 
alternative (Necker-Gardner-Maro-General Area lobster grounds with the 
option of establishing additional fishing grounds) would best meet the 
management objectives of the FMP and would enhance lobster resource 
conservation because it would help prevent local depletion at the 
Necker Island, Gardner Pinnacles, and Maro Reef fishing grounds and 
promote a broader distribution of fishing effort in other areas of the 
NWHI (General Area fishing grounds). Also, this action would provide 
more information about the lobster resource in the NWHI, because 
lobster fishing effort would be more widely distributed than it was in 
the past several years and would allow for the specification of 
additional fishing grounds as new information becomes available. This 
information, combined with a NMFS scientific data collection/observer 
program, should result in more effective management of the fishery. 
Most important, the proposed allocation system would respond to the 
concern that, unless lobster harvest at Necker Island, Gardner 
Pinnacles, and Maro Reef is limited, the lobster populations in those 
areas may be at risk.
    If a final rule is issued after the public comment period, it is 
NMFS intention to make it effective before or as close as possible to 
the July 1, 1999, season opening and to announce bank-specific 
allocations of the 1999 harvest guideline concurrently, or soon 
thereafter as possible.

Classification

    This proposed rule has been determined to be not significant for 
purposes of E.O. 12866.
    NMFS has prepared a regulatory impact review/initial regulatory 
flexibility analysis (RIR/IRFA) in compliance with the Regulatory 
Flexibility Act. This analysis describes the impact this proposed rule 
would have on small entities. The proposed rule would apply to the 12 
permit holders, who own the 15 vessels in this limited entry fishery; 
however, typically only about half of the permitted vessels are 
expected to participate in each annual fishery. All participants in the 
fishery are small entities. No new reporting or record keeping 
requirements would be imposed by this proposed rule. No Federal rules 
are known to duplicate, overlap, or conflict with this rule. The 
reasons for, objectives of, and legal basis for this rule are described 
elsewhere in this preamble. The five alternative actions the Council 
considered regarding permanent allocation of the NWHI harvest guideline 
are discussed previously in the preamble to this rule, and in the RIR/
IRFA. The IRFA compares annual revenues and costs per

[[Page 29836]]

vessel under the following four scenarios: (1) No allocations among 
fishing grounds; (2) 1998 allocation of the NWHI-wide harvest guideline 
among four fishing grounds, i.e., Necker Island, Maro Reef, Gardner 
Pinnacles, and Other Grounds; (3) 50-percent increase in the 1998 
harvest allocation for each of the fishing grounds that have 
historically produced the majority of the lobster landings from the 
NWHI (i.e., Necker Island, Maro Reef, and Gardner Pinnacles); and (4) 
50-percent decrease in the 1998 harvest allocation for the Necker 
Island, Maro Reef, and Gardner Pinnacles fishing grounds. The impact of 
each of the four scenarios in terms of gross revenue, operating costs, 
return on operations, fixed costs, net revenue, and return on 
investment is presented in Table 2 to the IRFA.
    Based on the experience of the 1998 fishery, which was managed 
under a nearly identical 1-year rule on a trial basis, participants are 
expected to fish at the Necker Island, Maro Reef, and Gardner Pinnacles 
fishing grounds until each closes. Some fishing on the Other Grounds in 
the NWHI will take place. However, average catch per unit effort rates 
are expected to be lower than those on the other three fishing grounds, 
and the entire NWHI harvest guideline may not be taken (22 percent of 
the total harvest guideline was not taken in 1998). This will lead to 
lower average gross revenues, as well as to slightly higher travel 
costs compared to the same harvest guidelines unallocated among banks. 
However, the proposed action should result in long-term economic 
benefits to the fishery as the resource increases with improved 
fisheries management. A copy of the RIR/IRFA is available for public 
review and comment (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 PRA unless that collection-of-information displays a currently 
valid OMB control number. This rule contains a collection-of-
information requirement subject to the Paperwork Reduction Act (PRA) 
that has been approved by OMB under OMB Control Number 0648-0307. This 
rule's collection-of-information burden is only for those persons who 
wish to voluntarily use a VMS unit in the fishery. The collection is to 
query through the VMS system a vessel to learn of its location before 
and after the start of the season or closure of a fishing ground, which 
is automatic with no action required by the vessel operator, except to 
verify the VMS unit is operating. The burden associated with this 
collection is estimated to require a response time of .033 seconds. 
Permit holders whose vessels are not equipped with VMS would have the 
option of installing new VMS in order to participate under this 
regulatory option for the opening and closing of the lobster season and 
transitting between fishing grounds. Send comments regarding the 
collection-of-information burden or any other aspect of the information 
collection to NMFS and OMB (see ADDRESSES).
    A formal section 7 consultation under the Endangered Species Act 
was concluded for Amendment 9, which established the harvest guideline 
system. On February 20, 1999, NMFS initiated an informal section 7 
consultation to determine whether the effect on Hawaiian monk seals 
from the fishery managed under the proposed action is likely to be 
adverse. During the consultation NMFS will consider the Marine Mammal 
Commission's recommendation to prohibit lobster fishing at French 
Frigate Shoals, Kure Atoll, Pearl and Hermes Reef, and Lisianski Island 
because of their proximity to major Hawaiian monk seal breeding 
colonies. This consultation is expected to be concluded soon.

List of Subjects in 50 CFR Part 660

    Administrative practice and procedure, American Samoa, Fisheries, 
Fisheries, Fishing, Guam, Hawaiian Natives, Indians, Northern Mariana 
Islands, Reporting and record keeping requirements.

    Dated: May 28, 1999.
Andrew A. Rosenberg,
Deputy Assistant Administrator for Fisheries, National Marine Fisheries 
Service.
    For the reasons set out in the preamble, 50 CFR part 660 is 
proposed to be amended as follows:

PART 660--FISHERIES OFF WEST COAST STATES AND IN THE WESTERN 
PACIFIC

    1. The authority citation for part 660 continues to read as 
follows:

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

    2. Section 660.12 is amended by adding the definition of ``Lobster 
grounds'', in alphabetical order, to read as follows:


Sec. 660.12  Definitions.

* * * * *
    Lobster grounds refers, singularly or collectively, to the 
following four areas in Crustaceans Permit Area 1 that shall be used to 
manage the lobster fishery:
    (1) Necker Island Lobster Grounds--waters bounded by straight lines 
connecting the following coordinates in the order presented: 24 deg.00' 
N. lat., 165 deg.00' W. long.; 24 deg.00' N. lat., 164 deg.00' W. 
long.; 23 deg.00' N. lat., 164 deg.00' W. long.; and 23 deg.00' N. 
lat., 165 deg.00' W. long.
    (2) Gardner Pinnacles Lobster Grounds--waters bounded by straight 
lines connecting the following coordinates in the order presented: 
25 deg.20' N. lat., 168 deg.20' W. long.; 25 deg.20' N. lat., 
167 deg.40' W. long.; 24 deg.20' N. lat., 167 deg.40' W. long.; and 
24 deg.20' N. lat., 168 deg.20' W. long.
    (3) Maro Reef Lobster Grounds--waters bounded by straight lines 
connecting the following coordinates in the order presented: 25 deg.40' 
N. lat., 171 deg.00' W. long.; 25 deg.40' N. lat., 170 deg.20' W. 
long.; 25 deg.00' N. lat., 170 deg.20' W. long.; and 25 deg.00' N. 
lat., 171 deg.00' W. long.
    (4) General NWHI Lobster Grounds--all waters within Crustaceans 
Permit Area 1 except for the Necker Island, Gardner Pinnacles, and Maro 
Reef Lobster Grounds.
* * * * *
    3. Section 660.42 is amended by adding new paragraphs (a)(1)(vi) 
and (a)(13) to read as follows:


Sec. 660.42  Prohibitions.

* * * * *
    (a) * * *
    (1) * * *
    (vi) In a lobster grounds after closure of that grounds as 
specified in Sec. 660.50(b).
* * * * *
    (13) Possess, on a fishing vessel that has a limited access permit 
issued under this subpart, any lobster trap in a lobster grounds that 
is closed under Sec. 660.50(b), unless the vessel has an operational 
VMS unit, certified by NMFS, on board.
* * * * *
    4. Section 660.48 is amended by revising paragraph (a)(7) to read 
as follows:


Sec. 660.48  Gear restrictions.

    (a) * * *
    (7) A vessel, whose owner has a limited access permit issued under 
this subpart and has on board an operational VMS unit certified by 
NMFS, may transit Crustaceans Permit Area 1, including Crustaceans 
Permit Area 1 VMS Subarea, with lobster traps on board for the purpose 
of moving to another lobster grounds or returning to port following the 
closure date, as specified in Sec. 660.50, providing the vessel does 
not stop or fish and is making steady progress to another lobster 
grounds or back to port as determined by NMFS.
* * * * *
    5. Section 660.50 is amended by revising paragraph (a) introductory 
text,

[[Page 29837]]

paragraphs (b)(1), (b)(3) and (b)(4), and adding new paragraph (b)(5) 
to read as follows:


Sec. 660.50  Harvest limitation program.

    (a) General. Harvest guidelines for the Necker Island Lobster 
Grounds, Gardner Pinnacles Lobster Grounds, Maro Reef Lobster Grounds, 
and General NWHI Lobster Grounds for Permit Area 1 will be set annually 
for the calendar year and shall:
* * * * *
    (b) Harvest guideline. (1) The Regional Administrator shall use 
information from daily lobster catch reports and lobster sales reports 
from previous years, and may use information from research sampling and 
other sources to establish the annual harvest guideline in accordance 
with the FMP after consultation with the Council.
* * * * *
    (3) The Regional Administrator shall determine, on the basis of the 
information reported to NMFS by the operator of each vessel fishing, 
when the harvest guideline for each lobster ground will be reached.
    (4) Notice of the date when the harvest guideline for a lobster 
ground is expected to be reached and specification of the closure date 
of the lobster grounds will be provided to each permit holder and/or 
operator of each permitted vessel at least 24 hours in advance of the 
closure. After a closure, the harvest of lobster in that lobster ground 
is prohibited, and the possession of lobster traps on board the vessel 
in that lobster ground is prohibited unless allowed under 
Sec. 660.48(a)(7).
    (5) With respect to the notification in paragraph (b)(4) of this 
section, NMFS shall provide each permit holder and operator of each 
permitted vessel with the following information, as appropriate:
    (i) Determination of when the over-all harvest guideline for 
Crustaceans Permit Area 1 will be reached;
    (ii) Closure date after which harvest of lobster or possession of 
lobster traps on board the vessel in a lobster grounds is prohibited;
    (iii) Closure date after which the possession of lobster traps on 
board the vessel in Crustaceans Permit Area 1 is prohibited by any 
permitted vessel that is not operating a VMS unit certified by NMFS; 
and
    (iv) Specification of when further landings of lobster will be 
prohibited by permitted vessels not carrying an operational VMS unit, 
certified by NMFS, on board.
* * * * *
[FR Doc. 99-14061 Filed 6-2-99; 8:45 am]
BILLING CODE 3510-22-P