[Federal Register Volume 64, Number 211 (Tuesday, November 2, 1999)]
[Proposed Rules]
[Pages 59153-59155]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-28477]


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DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

50 CFR Parts 622 and 654

[Docket No. 991021283-9283-01; I.D. 072699D]
RIN 0648-AL81


Fisheries of the Caribbean, Gulf of Mexico, and South Atlantic; 
Fishery Management Plans of the Gulf of Mexico; Addition to FMP 
Framework Provisions; Stone Crab Gear Requirements

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 regulations to implement those provisions of the 
Generic Sustainable Fisheries Act Amendment to the Fishery Management 
Plans (FMPs) of the Gulf of Mexico (SFA Amendment) that would modify 
the framework regulatory adjustment procedures in the FMPs for reef 
fish, red drum, and coastal migratory pelagics. These FMP framework 
modifications would allow timely addition of various stock population 
parameters to the appropriate FMP(s), including biomass-based estimates 
of minimum stock size thresholds (MSSTs), optimum yield (OY), maximum 
sustainable yield (MSY), stock biomass that would be achieved by 
fishing at MSY (BMSY), and maximum fishing mortality 
thresholds (MFMTs). These regulations also would revise the stone crab 
trap construction requirements, as proposed by the SFA Amendment. The 
intended effects are to provide a more timely mechanism for 
incorporating stock population parameters into the applicable FMPs when 
such information becomes available and to establish stone crab trap 
construction regulations that are compatible with those of the State of 
Florida and that will reduce finfish bycatch.

DATES: Written comments must be received on or before December 17, 
1999.

ADDRESSES: Comments on this proposed rule must be sent to the Southeast 
Regional Office, NMFS, 9721 Executive Center Drive N., St. Petersburg, 
FL 33702.
    Requests for copies of the SFA Amendment, which includes an 
environmental assessment and a regulatory impact review, should be sent 
to the Gulf of Mexico Fishery Management Council, 3018 U.S. Highway 301 
North, Suite 1000, Tampa, FL 33619-2266; Phone: 813-228-2815; Fax: 813-
225-7015; E-mail: [email protected].

FOR FURTHER INFORMATION CONTACT: Roy Crabtree, 727-570-5305.

SUPPLEMENTARY INFORMATION: The SFA Amendment addresses fisheries under 
the FMPs for coral and coral reef resources, coastal migratory 
pelagics, red drum, reef fish, shrimp, spiny lobster, and stone crab. 
The FMPs were prepared by the Gulf of Mexico Fishery Management Council 
(Council), except for the FMPs for coastal migratory pelagics and spiny 
lobster that were prepared jointly by the South Atlantic and Gulf of 
Mexico Fishery Management Councils. All of these FMPs, except the spiny 
lobster and stone crab FMPs, are implemented under the authority of the 
Magnuson-Stevens Fishery Conservation and Management Act (Magnuson-
Stevens Act) by regulations at 50 CFR part 622. The Fishery Management 
Plan for the Spiny Lobster Fishery of the Gulf of

[[Page 59154]]

Mexico and South Atlantic is implemented by regulations at 50 CFR part 
640; the Fishery Management Plan for the Stone Crab Fishery of the Gulf 
of Mexico is implemented by regulations at 50 CFR part 654.
    In 1998, NMFS published revised national standard guidelines to 
implement the October 1996 amendments to the Magnuson-Stevens Act, 
which resulted from the Sustainable Fisheries Act of 1996 (SFA). The 
revised guidelines are intended to assist regional fishery management 
councils in developing amendments to their fishery management plans to 
meet SFA requirements including the description of fisheries and 
fishing communities, setting criteria to determine when a stock is 
overfished, establishing measures to prevent or end overfishing and 
rebuild overfished stocks, assessing the amount and type of bycatch, 
and establishing measures to minimize bycatch (63 FR 24212, May 1, 
1998).
    Using these revised guidelines, the Council developed its SFA 
Amendment. Two measures in the SFA amendment, the modification of the 
framework procedures and the changes to stone crab trap construction 
requirements, would be implemented by regulation. The SFA Amendment 
would modify the framework procedures for adjustments in the measures 
of FMPs for reef fish, red drum, and coastal migratory pelagics to 
allow timely addition/modification of biomass-based estimates of MSST, 
OY, MSY, BMSY, estimates of MFMT, and rebuilding schedules 
for overfished species, with regard to the subject FMPs. The proposed 
revisions to the FMPs' framework procedures would allow more timely 
incorporation of these population parameters and rebuilding schedules 
into the appropriate FMP, and subsequent modification, as new 
scientific information becomes available. These proposed regulations 
simply reflect the SFA Amendment's modification of the existing 
framework procedures in the Council's FMPs to allow incorporation of 
the aforementioned population parameters and their subsequent 
modification.
    Although the framework procedures of the Council's FMPs generally 
refer to rulemaking, NMFS does not intend to specify the actual values 
of these population parameters in codified text. However, NMFS would 
publish notification of such Council-proposed additions/modifications 
of these parameters with regard to an FMP in the Federal Register and 
would solicit public comment in accordance with the applicable FMP 
framework procedure. After considering the public comment and the 
Council's proposal, NMFS would take final action to approve/disapprove 
the proposed parameters. Approved population parameters would be 
considered legitimate measures of the applicable FMP but would not 
appear in codified text. This process should allow more timely 
incorporation/modification of such parameters with regard to an FMP, 
while ensuring the opportunity for adequate public review and comment.
    This proposed rule also would implement stone crab trap 
construction requirements compatible with those set forth in Chapter 
46-13.002(2)(a) of Florida law. The stone crab fishery is prosecuted 
almost exclusively off Florida. Compatible regulations enhance 
compliance and enforceability. Since the Council's decision to adopt 
stone crab trap construction requirements compatible with Florida's, 
Florida has revised its requirements by providing additional options 
for complying with the degradable panel specifications. Because it was 
the Council's intent to adopt measures compatible with Florida's and 
because Florida's revisions, effective June 1, 1999, relieve a 
restriction by providing additional options for compliance, NMFS 
proposes to revise Sec. 654.22(a)(6)(ii) consistent with Florida's June 
1, 1999, revisions. Comments are invited regarding that additional 
change.
    In addition to the two measures that would be implemented by this 
rule, the SFA Amendment includes several measures that are not being 
implemented through regulatory text. It describes Gulf of Mexico 
fishing communities using existing U.S. census data and information 
about regional landings and about fishing participants in various 
fisheries for each of the Gulf of Mexico coastal states. It briefly 
addresses the Magnuson-Stevens Act requirement to describe fishing 
sectors and quantify trends in landings by sector. It defines bycatch 
and concludes that, with the addition of changes in the construction of 
stone crab pots proposed in this rule, conservation and management 
measures currently in place under Council FMPs minimize bycatch and 
bycatch mortality to the extent practicable. It also discusses measures 
to improve the assessment of the type, amount, and mortality of fish 
caught and released alive in recreational catch-and-release programs.
    The SFA Amendment specifies status determination criteria and 
overfishing thresholds for each FMP that are intended to meet the 
appropriate requirements of the Magnuson-Stevens Act and establishes 
stock rebuilding schedules for overfished red snapper (1999-2033) and 
Gulf-group king mackerel (1999-2009). Stock rebuilding schedules for 
Nassau grouper, jewfish, or red drum (also overfished) would be 
specified and implemented through the framework procedures of FMPs as 
such schedules are developed.

Availability of Comprehensive Amendment

    Additional background and rationale for the measures discussed 
above are contained in the SFA Amendment, the availability of which was 
announced in the Federal Register (64 FR 44884, August 18, 1999). The 
public comment period on the SFA Amendment expired on October 18, 1999. 
All comments received on the SFA Amendment or on this proposed rule 
during their respective comment periods will be addressed in the 
preamble to the final rule.

Classification

    At this time, NMFS has not determined that the SFA Amendment that 
this rule would implement is consistent with the national standards of 
the Magnuson-Stevens Act and other applicable laws. NMFS, in making 
that determination, will take into account the data, views, and 
comments received during the comment period on the SFA Amendment, as 
well as the administrative record.
    This proposed rule has been determined to be not significant for 
purposes of E.O. 12866.
    The Chief Counsel for Regulation of the Department of Commerce has 
certified to the Chief Counsel for Advocacy of the Small Business 
Administration that this proposed rule, if adopted, would not have a 
significant economic impact on a substantial number of small entities. 
The basis for this certification follows:

    The SFA Amendment would modify the existing framework regulatory 
adjustment procedures in the FMPs for coastal migratory pelagics, 
reef fish, and red drum to allow timely incorporation into the FMPs 
of biomass-based population parameters, such as status determination 
criteria (e.g., minimum stock size thresholds) and overfishing 
thresholds (e.g., maximum fishing mortality thresholds), as soon as 
the necessary scientific information becomes available. The proposed 
rule simply reflects the SFA Amendment's proposed modifications in 
the FMPs' framework measures. These modifications would have no 
immediate economic impacts. Ultimately, these new biological 
population parameters, as required by the Magnuson-Stevens Fishery 
Conservation and Management Act, may provide the basis for 
additional future management actions. The impacts of such future 
actions would be evaluated at that

[[Page 59155]]

time in the appropriate supporting regulatory impact analysis.
    This proposed rule would also revise the trap construction 
requirements for the stone crab fishery to make them compatible with 
the requirements established by the State of Florida, where the 
majority of the fishery is prosecuted. These changes in trap 
construction are intended to minimize the bycatch of finfish in 
stone crab traps. The economic impact on affected fishermen will be 
very small, almost negligible, because the changes are minor and 
because the majority of stone crab traps used in Federal waters 
already conform to the Florida requirements for trap design.

    As a result, a regulatory flexibility analysis was not required.

List of Subjects

50 CFR Part 622

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

50 CFR Part 654

    Fisheries, Fishing.

    Dated: October 26, 1999.
Andrew A. Rosenberg,
Deputy Assistant Administrator for Fisheries, National Marine Fisheries 
Service.
    For the reasons set out in the preamble, 50 CFR parts 622 and 654 
are 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. 622.48, paragraphs (c) and (d) are revised, and 
paragraph (j) is added to read as follows:


Sec. 622.48  Adjustment of management measures.

* * * * *
    (c) Coastal migratory pelagic fish. For a species or species group: 
Target date for rebuilding an overfished species, MSY (or proxy), stock 
biomass achieved by fishing at MSY (BMSY) (or proxy), 
maximum fishing mortality threshold (MFMT), minimum stock size 
threshold (MSST), OY, TAC, quota (including a quota of zero), bag limit 
(including a bag limit of zero), minimum size limit, vessel trip 
limits, closed seasons or areas and reopenings, gear restrictions 
(ranging from regulation to complete prohibition), reallocation of the 
commercial/recreational allocation of Atlantic group Spanish mackerel, 
and permit requirements.
    (d) Gulf reef fish. (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, 
MSY (or proxy), OY, and estimates of stock biomass achieved by fishing 
at MSY (BMSY), minimum stock size threshold (MSST), and 
maximum fishing mortality threshold (MFMT).
    (2) SMZs and the gear restrictions applicable in each.
* * * * *
    (j) Gulf red drum. Target date for rebuilding an overfished 
species, MSY (or proxy), stock biomass achieved by fishing at MSY 
(BMSY), OY, TAC, minimum stock size threshold (MSST), 
maximum fishing mortality threshold (MFMT), escapement rates for 
juvenile fish, bag limits, size limits, gear harvest limits, and other 
restrictions required to prevent exceeding allocations or quotas.

PART 654--STONE CRAB FISHERY OF THE GULF OF MEXICO

    3. The authority citation for part 654 continues to read as 
follows:

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

    4. In Sec. 654.22, paragraph (a) is revised to read as follows:


Sec. 654.22  Gear restrictions.

    (a) Trap construction requirements. No person fishing for stone 
crab may transport on the water or fish with any trap which does not 
meet the following requirements:
    (1) Each trap must be constructed of wood, plastic, or wire.
    (2) A trap may be no larger in dimension than 24 by 24 by 24 inches 
(61 by 61 by 61 cm) or 8.0 ft3 (0.23 m3).
    (3) The throats (entrances) to all wood and plastic traps must be 
located on the top horizontal section of the trap. If the throat is 
longer in one dimension, the throat size in the longer dimension must 
not exceed 5\1/2\ inches (14.0 cm) and in the shorter dimension must 
not exceed 3\1/2\ inches (9.0 cm). If the throat is round, the throat 
size must not exceed 5 inches (12.7 cm) in diameter.
    (4) In any wire trap used to harvest stone crabs, each throat must 
be horizontally oriented. The width of the opening where the throat 
meets the vertical wall of the trap and the opening of the throat at 
its farthest point from the vertical wall, inside the trap, must be 
greater than the height of any such opening. No such throat may extend 
farther than 6 inches (15.2 cm) into the inside of any trap, measured 
from where the throat opening meets the vertical wall of the trap to 
the throat opening at its farthest point from the vertical wall, inside 
the trap.
    (5) A wire trap must have at least three unobstructed escape rings 
installed, each with a minimum inside diameter of 2 3/8 inches (6.0 
cm). One such escape ring must be located on a vertical outer surface 
adjacent to each crab retaining chamber.
    (6) A plastic or wire trap must have a degradable panel.
    (i) A plastic trap will be considered to have degradable panel if 
it contains at least one sidewall with a rectangular opening no smaller 
in either dimension than that of the throat. This opening may be 
obstructed only with a cypress or untreated pine slat or slats no 
thicker than 3/4 inch (1.9 cm) such that when the slat degrades, the 
opening in the sidewall of the trap will no longer be obstructed.
    (ii) A wire trap will be considered to have a degradable panel if 
one of the following methods is used in construction of the trap:
    (A) The trap lid tie-down strap is secured to the trap at one end 
by a single loop of untreated jute twine, a corrodible loop composed of 
non-coated steel wire measuring 24 gauge or thinner, or an untreated 
pine dowel no larger than 2 inches (5.1 cm) in length by 3/8 inch (0.95 
cm) in diameter. The trap lid must be secured so that when the jute, 
corrodible loop, or pine dowel degrades, the lid will no longer be 
securely closed.
    (B) The trap contains at least one sidewall with a vertical 
rectangular opening no smaller in either dimension than 6 inches (15.2 
cm) in height by 3 inches (7.6 cm) in width. This opening may be laced, 
sewn, or otherwise obstructed by--
    (1) A single length of untreated jute twine knotted only at each 
end and not tied or looped more than once around a single mesh bar;
    (2) Untreated pine slat(s) no thicker than 3/8 inch (0.95 cm);
    (3) Non-coated steel wire measuring 24 gauge or thinner;
    (4) A panel of ferrous single-dipped galvanized wire mesh made of 
24 gauge or thinner wire; or
    (5) A rectangular panel made of any material, fastened to the trap 
at each of the four corners of the rectangle by rings made of non-
coated 24 gauge or thinner wire or single strands of untreated jute 
twine. When the jute, untreated pine slat(s), non-coated steel wire, 
wire mesh panel, or corner fasteners degrade, the opening in the 
sidewall of the trap must no longer be obstructed.
* * * * *
[FR Doc. 99-28477 Filed 11-1-99; 8:45 am]
BILLING CODE 3510-22-F