[Federal Register Volume 69, Number 71 (Tuesday, April 13, 2004)]
[Proposed Rules]
[Pages 19365-19386]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 04-8383]


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DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

50 CFR Part 229

[Docket No. 040407106-4106-01, I.D. 040104A]
RIN 0648-AS04


List of Fisheries for 2004

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

ACTION: Proposed rule.

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SUMMARY: The National Marine Fisheries Service (NMFS) is publishing the 
proposed List of Fisheries (LOF) for 2004, as required by the Marine 
Mammal Protection Act (MMPA). The proposed LOF for 2004 reflects new 
information on interactions between commercial fisheries and marine 
mammals. NMFS must categorize each commercial fishery on the LOF into 
one of three categories under the MMPA based upon the level of serious 
injury and mortality of marine mammals that occurs incidental to each 
fishery. The categorization of a fishery in the LOF determines whether 
participants in that fishery are subject to certain provisions of the 
MMPA, such as registration, observer coverage, and take reduction plan 
requirements.

DATES: Comments must be received by May 13, 2004.

ADDRESSES: Send comments to Chief, Marine Mammal Conservation Division, 
Attn: List of Fisheries, Office of Protected Resources, NMFS, 1315 
East-West Highway, Silver Spring, MD 20910. Comments may also be sent 
via email to [email protected] or to the Federal eRulemaking 
portal: http://www.regulations.gov (follow instructions for submitting 
comments).

[[Page 19366]]

    Comments regarding the burden-hour estimates, or any other aspect 
of the collection of information requirements contained in this 
proposed rule, should be submitted in writing to the Chief, Marine 
Mammal Conservation Division, Office of Protected Resources, NMFS, 1315 
East-West Highway, Silver Spring, MD 20910 and to David Rostker, OMB, 
by e-mail at [email protected] or by fax to 202-395-7285.
    See SUPPLEMENTARY INFORMATION for information on how to obtain 
registration information, materials, and marine mammal reporting forms.

FOR FURTHER INFORMATION CONTACT: Kristy Long, Office of Protected 
Resources, 301-713-1401; Kim Thounhurst, Northeast Region, 978-281-
9328; Juan Levesque, Southeast Region, 727-570-5312; Cathy Campbell, 
Southwest Region, 562-980-4060; Brent Norberg, Northwest Region, 206-
526-6733; Bridget Mansfield, Alaska Region, 907-586-7642. Individuals 
who use a telecommunications device for the hearing impaired may call 
the Federal Information Relay Service at 1-800-877-8339 between 8 a.m. 
and 4 p.m. Eastern time, Monday through Friday, excluding Federal 
holidays.

SUPPLEMENTARY INFORMATION: Registration information, materials, and 
marine mammal reporting forms may be obtained from the following 
regional offices:
    NMFS, Northeast Region, One Blackburn Drive, Gloucester, MA 01930-
2298, Attn: Marcia Hobbs;
    NMFS, Southeast Region, 9721 Executive Center Drive North, St. 
Petersburg, FL 33702, Attn: Teletha Griffin;
    NMFS, Southwest Region, Protected Species Management Division, 501 
W. Ocean Blvd., Suite 4200, Long Beach, CA 90802-4213, Attn: Don 
Peterson;
    NMFS, Northwest Region, 7600 Sand Point Way NE, Seattle, WA 98115, 
Attn: Permits Office; or
    NMFS, Alaska Region, Protected Resources, P.O. Box 22668, 709 West 
9th Street, Juneau, AK 99802.

What is the List of Fisheries?

    Section 118 of the MMPA requires that NMFS place all U.S. 
commercial fisheries into one of three categories based on the level of 
incidental serious injury and mortality of marine mammals that occurs 
in each fishery (16 U.S.C. 1387 (c)(1)). The categorization of a 
fishery in the LOF determines whether participants in that fishery may 
be required to comply with certain provisions of the MMPA, such as 
registration, observer coverage, and take reduction plan requirements. 
NMFS must reexamine the LOF annually, considering new information in 
the Stock Assessment Reports, other relevant sources, and the LOF, and 
publish in the Federal Register any necessary changes to the LOF after 
notice and opportunity for public comment (16 U.S.C. 1387 (c)(3)).

How Does NMFS Determine in which Category a Fishery is Placed?

    The definitions for the fishery classification criteria can be 
found in the implementing regulations for section 118 of the MMPA (50 
CFR 229.2). The criteria are also summarized here.

Fishery Classification Criteria

    The fishery classification criteria consist of a two-tiered, stock-
specific approach that first addresses the total impact of all 
fisheries on each marine mammal stock, and then addresses the impact of 
individual fisheries on each stock. This approach is based on 
consideration of the rate, in numbers of animals per year, of 
incidental mortalities and serious injuries of marine mammals due to 
commercial fishing operations relative to the Potential Biological 
Removal (PBR) level for each marine mammal stock. The MMPA (16 U.S.C. 
1362 (20)) defines the PBR level as the maximum number of animals, not 
including natural mortalities, that may be removed from a marine mammal 
stock while allowing that stock to reach or maintain its optimum 
sustainable population. This definition can also be found in the 
implementing regulations for section 118 at 50 CFR 229.2
    Tier 1: If the total annual mortality and serious injury across all 
fisheries that interact with a stock is less than or equal to 10 
percent of the PBR level of the stock, all fisheries interacting with 
the stock would be placed in Category III. Otherwise, these fisheries 
are subject to the next tier (Tier 2) of analysis to determine their 
classification.
    Tier 2, Category I: Annual mortality and serious injury of a stock 
in a given fishery is greater than or equal to 50 percent of the PBR 
level.
    Tier 2, Category II: Annual mortality and serious injury of a stock 
in a given fishery is greater than 1 percent and less than 50 percent 
of the PBR level.
    Tier 2, Category III: Annual mortality and serious injury of a 
stock in a given fishery is less than or equal to 1 percent of the PBR 
level.
    While Tier 1 considers the cumulative fishery mortality and serious 
injury for a particular stock, Tier 2 considers fishery-specific 
mortality and serious injury for a particular stock. Additional details 
regarding how the categories were determined are provided in the 
preamble to the final rule implementing section 118 of the MMPA (60 FR 
45086, August 30, 1995).
    Since fisheries are categorized on a per-stock basis, a fishery may 
qualify as one Category for one marine mammal stock and another 
Category for a different marine mammal stock. A fishery is typically 
categorized on the LOF at its highest level of classification (e.g., a 
fishery that qualifies for Category III for one marine mammal stock and 
for Category II for another marine mammal stock will be listed under 
Category II).

Other Criteria That May Be Considered

    In the absence of reliable information indicating the frequency of 
incidental mortality and serious injury of marine mammals by a 
commercial fishery, NMFS will determine whether the incidental serious 
injury or mortality qualifies for Category II by evaluating other 
factors such as fishing techniques, gear used, methods used to deter 
marine mammals, target species, seasons and areas fished, qualitative 
data from logbooks or fisher reports, stranding data, and the species 
and distribution of marine mammals in the area, or at the discretion of 
the Assistant Administrator for Fisheries (50 CFR 229.2).

How Do I Find Out if a Specific Fishery is in Category I, II, or III?

    This proposed rule includes two tables that list all U.S. 
commercial fisheries by LOF Category. Table 1 lists all of the 
fisheries in the Pacific Ocean (including Alaska). Table 2 lists all of 
the fisheries in the Alantic Ocean, Gulf of Mexico, and Caribbean.

Am I Required to Register Under the MMPA?

    Owners of vessels or gear engaging in a Category I or II fishery 
are required under the MMPA (16 U.S.C. 1387(c)(2)), as described in 50 
CFR 229.4, to register with NMFS and obtain a marine mammal 
authorization from NMFS in order to lawfully incidentally take a marine 
mammal in a commercial fishery. Owners of vessels or gear engaged in a 
Category III fishery are not required to register with NMFS or obtain a 
marine mammal authorization.

How Do I Register?

    Fishers must register with the Marine Mammal Authorization Program 
(MMAP) by contacting the relevant NMFS Regional Office (see ADDRESSES) 
unless they participate in a fishery that has an integrated 
registration program (described below). Upon receipt of a

[[Page 19367]]

completed registration, NMFS will issue vessel or gear owners physical 
evidence of a current and valid registration that must be displayed or 
in the possession of the master of each vessel while fishing in 
accordance with section 118 of the MMPA (16 U.S.C. 1387(c)(3)(A)).

What is the Process for Registering in an Integrated Fishery?

    For some fisheries, NMFS has integrated the MMPA registration 
process with existing state and Federal fishery license, registration, 
or permit systems and related programs. Participants in these fisheries 
are automatically registered under the MMPA and are not required to 
submit registration or renewal materials or pay the $25 registration 
fee. Following is a list of integrated fisheries and a summary of the 
integration process for each Region. Fishers who operate in an 
integrated fishery and have not received registration materials should 
contact their NMFS Regional Office listed in the first paragraph of 
SUPPLEMENTARY INFORMATION.

Which Fisheries Have Integrated Registration Programs?

    The following fisheries have integrated registration programs under 
the MMPA:
    1. All Alaska Category II fisheries;
    2. All Washington and Oregon Category II fisheries;
    3. Northeast Regional fisheries for which a state or Federal permit 
is required. Individuals fishing in fisheries for which no state or 
Federal permit is required must register with NMFS by contacting the 
Northeast Regional Office (see ADDRESSES); and
    4. All North Carolina, South Carolina, Georgia, and Florida 
Category I and II fisheries for which a state permit is required.

How Do I Renew My Registration Under the MMPA?

     Regional Offices, except for the Northeast Region, annually send 
renewal packets to participants in Category I or II fisheries that have 
previously registered; however, it is the responsibility of the fisher 
to ensure that registration or renewal forms are completed and 
submitted to NMFS at least 30 days in advance of fishing. Individuals 
who have not received a renewal packet by January 1 or are registering 
for the first time should request a registration form from the 
appropriate Regional Office (see ADDRESSES).

Am I Required to Submit Reports When I Injure or Kill a Marine Mammal 
During the Course of Commercial Fishing Operations?

    In accordance with the MMPA (16 U.S.C. 1387(e)) and 50 CFR 229.6, 
any vessel owner or operator, or fisher (in the case of non-vessel 
fisheries), participating in a Category I, II, or III fishery must 
report all incidental injuries or mortalities of marine mammals that 
occur during commercial fishing operations to NMFS. ``Injury'' is 
defined in 50 CFR 229.2 as a wound or other physical harm. In addition, 
any animal that ingests fishing gear or any animal that is released 
with fishing gear entangling, trailing, or perforating any part of the 
body is considered injured, regardless of the absence of any wound or 
other evidence of an injury, and must be reported. Instructions on how 
to submit reports can be found in 50 CFR 229.6.

Am I Required to Take an Observer Aboard My Vessel?

    Fishers participating in a Category I or II fishery are required to 
accommodate an observer aboard vessel(s) upon request. Observer 
requirements can be found in 50 CFR 229.7.

Am I Required to Comply With Any Take Reduction Plan Regulations?

    Fishers participating in a Category I or II fishery are required to 
comply with any applicable take reduction plans.

Sources of Information Reviewed for the Proposed 2004 LOF

    NMFS reviewed the marine mammal incidental serious injury and 
mortality information presented in the Stock Assessment Reports (SARs) 
for all observed fisheries to determine whether changes in fishery 
classification were warranted. NMFS SARs are based on the best 
scientific information available at the time of preparation for the 
information presented in the SARs, including the level of serious 
injury and mortality of marine mammals that occurs incidental to 
commercial fisheries and the potential biological removal (PBR) levels 
of marine mammal stocks. NMFS also reviewed other sources of new 
information, including marine mammal stranding data, observer program 
data, fisher self-reports, and other information that is not included 
in the SARs. NMFS also took into account the discretion of the 
Assistant Administrator for Fisheries in developing the 2004 proposed 
LOF.
    The information contained in the SARs is reviewed by regional 
scientific review groups (SRGs) representing Alaska, the Pacific 
(including Hawaii), and the U.S. Atlantic, Gulf of Mexico, and the 
Caribbean. The SRGs were created by the MMPA to review the science that 
goes into the stock assessment reports, and to advise NMFS on 
population status and trends, stock structure, uncertainties in the 
science, research needs, and other issues.
    The proposed LOF for 2004 was based, among other things, on 
information provided in the final SARs for 1996 (63 FR 60, January 2, 
1998), the final SARs for 2001 (67 FR 10671, March 8, 2002), the final 
SARs for 2002 (68 FR 17920, April 14, 2003), and the draft SARs for 
2003 (68 FR 51561, August 27, 2003).

Summary of Changes to the Proposed LOF for 2004

    The following summarizes changes in fishery classification 
including fisheries listed on the LOF, the number of participants in a 
particular fishery, and the species and/or stocks that are incidentally 
killed or seriously injured in a particular fishery, that are proposed 
for the 2004 LOF. The placement and definitions of U.S. commercial 
fisheries proposed for 2004 are identical to those provided in the LOF 
for 2003 with the following exceptions.

Commercial Fisheries in the Pacific Ocean: Fishery Classification

Hawaii Swordfish, Tuna, Billfish, Mahi Mahi, Wahoo, Oceanic Sharks 
Longline/Set Line Fishery

    NMFS proposes to reclassify the Hawaii Swordfish, Tuna, Billfish, 
Mahi Mahi, Wahoo, Oceanic Sharks Longline/Set Line Fishery (Hawaii 
longline fishery) as Category I under the MMPA primarily because of the 
level of incidental mortality and serious injury that occurs between 
this fishery and the Hawaiian stock of false killer whales (Pseudorca 
crassidens). However, NMFS also has information regarding incidental 
mortality and serious injury that occurs between this fishery and the 
Hawaiian stock of Risso's dolphins (Grampus griseus), Hawaiian stock of 
bottlenose dolphins (Tursiops truncatus), Hawaiian stock of spinner 
dolphins (Stenella longirostris), Hawaiian stock of pantropical spotted 
dolphins (Stenella attenuata), Hawaiian stock of short-finned pilot 
whales (Globicephala macrorhynchus), Hawaiian stock of Blainville's 
beaked whales (Mesoplodon densirostris), Hawaiian stock of sperm whales 
(Physeter macrocephalus) and the Central North Pacific stock of 
humpback whales (Megaptera novaeangliae).
    In 2002, NMFS surveyed cetacean abundance, including the Hawaiian

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stock of false killer whales, in waters where the Hawaii longline 
fishery operated, a survey that would allow for a better estimate of 
abundance and a more reliable PBR level and better estimates of 
mortality and serious injury in marine mammal stocks taken by this 
fishery. This survey addressed the limitations of the earlier survey 
data, discussed in the 2001 and 2003 LOFs (66 FR 42780, August 15, 
2001; 68 FR 41725, July 15, 2003) and the need for these data was 
emphasized in the 2001 LOF. The 2002 Pacific and Alaska SARs provided 
data about these stocks of marine mammals and calculated a rate of 
interaction between the Hawaii longline fishery and each stock based on 
observer data. As a result, false killer whales (Hawaiian stock) were 
determined to be a strategic stock in 2002. However, the surveys were 
not completed prior to the 2002 LOF and these data were not completely 
analyzed prior to the completion of the 2003 LOF. Further, the 
abundance estimate on which the PBR was based was considered an 
underestimate because it was based on 1993-98 aerial surveys conducted 
only within approximately 25 nautical miles of the main Hawaiian 
Islands, not throughout the entire range of the false killer whale 
stock. For these reasons, NMFS left in place the fishery's 
classification as a Category III fishery in 2002 and 2003 based on the 
limitations of available information, and the need to review other 
relevant sources in 2004.

Information Available for the 2004 LOF That was Not Available for the 
2003 LOF

    Abundance information: The results of the 2002 surveys in the 
Hawaiian EEZ are now available (Barlow, 2003. Cetacean Abundance in 
Hawaiian Waters during Summer/Fall of 2002, referenced as PSRG-7), and 
these have been combined with the earlier aerial surveys within 25 nmi 
of the main Hawaiian Islands (Mobley et al. 2000) to produce an 
estimate of the abundance of false killer whales in the Hawaiian EEZ. 
The methods used in the surveys followed standard survey techniques and 
are described in the scientific papers cited above. The method for 
combining the results of the two surveys followed standard statistical 
procedures. The 2002 survey of the entire Hawaiian Islands Exclusive 
Economic Zone (EEZ) resulted in an abundance estimate for false killer 
whales (Hawaiian stock) of 268 individuals (based on the lower 85-
percent confidence interval), a slight increase from the previous 
estimate.
    Mortality information: The results of an expanded observer program 
in the Hawaiian longline fishery are now available (Forney 2003. 
Estimates of Cetacean Mortality and Injury in the Hawaii Based Longline 
Fishery, 1994-2002. 11/4/2003). These mortality and serious injury 
estimates were based upon a long-term data set, with expanded observer 
coverage between 2000 and 2002 primarily in tuna-style fishing. These 
data allowed an evaluation of the suggestion that tuna-style fishing 
resulted in little to no (remote likelihood) injury or mortality of 
marine mammals. Since 1998, only one false killer whale has been 
observed killed in the Hawaiian EEZ.
    As a result of these data, updated abundance and mortality 
estimates have been included in the 2004 draft stock assessment report 
for the Hawaiian stock of false killer whales (False Killer Whale 
(Pseudorca crassidens): Hawaiian stock, dated 11/15/2003). This report 
describes abundance, mortality and status of false killer whales and 
partitions serious injury and mortality of the stock within and outside 
the US EEZ. All of the above reports have been subjected to scientific 
review within NMFS and are the best scientific information available 
related to abundance and mortality of false killer whales in the area.
    New Management Regime and Effort Reduction for the Fishery: NMFS 
approved a regulatory amendment under the Fishery Management Plan for 
the Pelagic Fisheries of the Western Pacific Region (FMP) submitted by 
the Western Pacific Fishery Management Council (Council), published a 
proposed rule on January 28, 2004, and issued a final rule on April 2, 
2004 (69 FR 17329) to establish a number of conservation and management 
measures for the fisheries managed under the FMP in order to provide 
adequate protections for sea turtles. On February 23, 2004, NMFS 
concluded consultation and issued a biological opinion under section 7 
of the Endangered Species Act on the pelagic fisheries of the western 
Pacific region as they would be managed under the measures implemented 
through this final rule. The biological opinion found that the 
fisheries are not likely to jeopardize the continued existence of any 
ESA-listed species under the jurisdiction of NMFS.
    That final rule reopened the swordfish-directed component of the 
Hawaii-based longline fishery with annual fleet-wide limits on fishery 
interactions with leatherback and loggerhead sea turtles, and an annual 
fleet-wide limit on fishing effort. The final rule also requires that 
operators of general longline vessels annually complete a protected 
species workshop and have on board a valid protected species workshop 
certificate.
    To implement the regulatory amendment proposed by the Council, the 
final rule: (1) Establishes an annual effort limit on the amount of 
shallow-set longline fishing effort north of the equator that may be 
collectively exerted by Hawaii-based longline vessels (2,120 shallow-
sets per year) and (2) divides and distributes this shallow-set annual 
effort limit each calendar year in equal portions to all holders of 
Hawaii longline-limited access permits. The interaction limits for 
leatherback and loggerhead sea turtles may also limit, albeit 
indirectly, interactions with other protected species, such as false 
killer whales, in the shallow-set component of the Hawaii-based 
longline fishery. Furthermore, under the ESA, when any of the 
incidental take limits is exceeded, NMFS reinitiates consultation under 
section 7 of the ESA, at which point the need for more restrictive 
measures would be considered. The terms and conditions of the 
incidental take statement in the 2004 biological opinion also mandate 
100-percent observer coverage in the shallow-set component of the 
Hawaii-based longline fishery and at least 20-percent coverage in the 
deep-set component. NMFS intends to implement these levels of coverage. 
Given the relatively long history of the deep-set component and our 
understanding of patterns of fishing, catches, and interactions with 
protected species, NMFS has determined 20 percent to be a sufficient 
level of coverage in the deep-set component of the fishery.

Tier Evaluation

    Tier 1 Evaluation: The Hawaii longline fishery is the only fishery 
known to interact with the Hawaiian stock of false killer whales. Based 
on the currently available data, total annual incidental mortality and 
serious injury across all fisheries (in this case, just the Hawaii 
longline fishery) is greater than or equal to 10 percent of the PBR 
level for the Hawaiian stock of false killer whales. Therefore, the 
Hawaii longline fishery is subject to Tier 2 analysis.
    Tier 2 Evaluation: Based on extrapolations from the currently 
available data, total annual mortality and serious injury (4.4 animals) 
of the Hawaiian stock of false killer whales exceeds 50 percent of the 
PBR level (PBR=1.2). The continued take of false killer whales and 
other cetaceans, including endangered humpback and sperm whales, 
warrant recategorization of the fishery. Therefore, NMFS recommends 
elevating this fishery to Category I in the 2004 LOF.

[[Page 19369]]

Justification for Category I Classification

    A mathematical application of the regulations based on the 
currently available data indicates that the total annual mortality and 
serious injury (4.4 animals) of the Hawaiian stock of false killer 
whales exceeds 50 percent of the PBR level (PBR=1.2). Therefore, NMFS 
is proposing to recategorize this fishery to a Category I under the 
MMPA. However, as explained below, NMFS is concerned that such a 
categorization may not adequately reflect the impact of this fishery on 
false killer whales. Accordingly, during the public comment period for 
this proposed rule, the NMFS Pacific Island Region will convene a 
workshop to evaluate the information used in this proposed 
categorization. The workshop will consist of NMFS scientists and 
managers as well as other individuals knowledgeable in marine mammal 
population assessments and interactions with fishing gear. The workshop 
will provide guidance on the reliability and adequacy of available 
information, including information on mortality and serious injury, 
used in the tier analysis and subsequent categorization decision. NMFS 
will consider the results of the workshop and public comments received 
on this proposed rule in its decision to classify this fishery in the 
final LOF for 2004.
    In the case of the Hawaii longline fishery, the classification is 
affected most by incidental mortality and serious injury of false 
killer whales. The mortality estimate is considered reliable in recent 
years because it is based upon a relatively high level of observer 
coverage in the fishery. The single mortality of a false killer whale 
in 1998 within the EEZ is the basis for the expanded mortality 
estimate. The average mortality used in the LOF comparisons to 
abundance are based on a 5-year average. So if no further mortalities 
occur in 2004, this single event will no longer be considered in the 5-
year average in 2005.
    The abundance estimate of 268 animals is currently the best 
available for this stock and represents a much better estimate for this 
stock inside the Hawaiian EEZ than estimates in previous years. 
However, the extent to which the abundance estimate may be lower than 
the actual abundance of false killer whales is unknown. As a result, 
the extent to which the PBR of 1.2 may also be considered an 
underestimate is unknown for this stock of false killer whales. The 
uncertainty in the abundance and PBR estimates likely overemphasizes 
the ratio between mortality and significant injury in this fishery to 
PBR; therefore, the impact of this fishery on false killer whales may 
be overemphasized.
    As noted above, the interaction limits for sea turtles may also 
limit, albeit indirectly, interactions with other protected species, 
including false killer whales, that occur in the shallow-set component 
of the Hawaii-based longline fishery. The extent to which these 
measures reduce interactions with marine mammal stocks is not known at 
this time.
    In summary, the abundance (and subsequently, the PBR) of false 
killer whales in the North Pacific Ocean is currently considered the 
best available estimate. However, it remains a minimum estimate because 
the surveys upon which the abundance estimate are based were limited in 
scope to a portion of the range, the Hawaiian EEZ, of the false killer 
whale stock. It does indicate that the stock abundance is low within 
the Hawaiian Island EEZ. Mortality records indicate that false killer 
whales occupy international waters and the EEZ around Palmyra, areas 
outside the 2002 survey area. Clearly, the number of false killer 
whales in the North Pacific Ocean subject to injury and mortality by 
the longline fishery exceeds the minimum population estimate included 
in Barlow, 2003 but it is not known by how much it is an underestimate. 
Such a conclusion can be based simply upon the presence of false killer 
whales in international waters and in the EEZ surrounding Palmyra that 
were hooked and killed or seriously injured incidental to the longline 
fishery.
    The proposed reclassisfication of the Hawaii Longline Fishery to a 
Category I is warranted based on the current information. However, NMFS 
intends to address the scientific bases for this conclusion at a 
workshop which will be held during the public comment period. As 
previously provided, NMFS will consider the results of this workshop 
and public comments received on this proposed rule in its decision to 
classify this fishery in the final LOF for 2004.

Delineation of Alaska Fisheries

    The List of Fisheries has included the Alaska groundfish fisheries 
as large combinations of fisheries since 1990. In the 2003 final LOF 
(68 FR 41725, July 15, 2003), NMFS indicated that it would review the 
existing fishery delineations in the LOF for Federal and state 
fisheries in Alaska. The decision to review Alaska fisheries was based, 
in part, on NMFS' recognition that the Bering Sea and Aleutian Islands 
(BSAI) groundfish trawl fishery is not a homogenous fishery, but 
rather, a diverse group of fisheries that target different groundfish 
species over distinct geographic areas within the Bering Sea and during 
different seasons. Marine mammal interactions likely vary among BSAI 
groundfish trawl fisheries, based on gear type, time and area of 
operations, and target groundfish species.
    NMFS also reviewed the Gulf of Alaska (GOA) Groundfish Trawl, 
Bering Sea and GOA Finfish Pot, AK Crustacean Pot, BSAI Groundfish 
Longline/Set Line (federally regulated waters, including miscellaneous 
finfish and sablefish), and GOA Groundfish Longline/Set Line (federally 
regulated waters, including miscellaneous finfish and sablefish) 
fisheries. Based on this review, NMFS proposes to delineate these 
fisheries by target species and gear type.
    NMFS seeks to collect and analyze data in a manner that provides 
information that allows for the most effective management of living 
marine resources, including marine mammals. Marine mammal interactions 
vary among Alaska groundfish fisheries, based on time and area of 
operation, method of gear deployment, and target groundfish species. 
Therefore, this proposed delineation of fisheries operations is 
expected to allow for improved resolution of factors affecting 
incidental mortality and serious injury of marine mammals in these 
fisheries. The proposed newly delineated fisheries are currently listed 
within fisheries classified as Category III fisheries on the LOF. NMFS 
is completing an analysis of past incidental mortality and serious 
injury for each of the proposed newly delineated fisheries in 
accordance with the fishery classification criteria set forth in the 
implementing regulations of section 118 of the MMPA (50 CFR part 229). 
NMFS proposes these newly delineated fisheries be added to the LOF as 
Category III fisheries until completion of the analysis of serious 
injury and mortality for these new fisheries.

Delineation of AK Bering Sea and Aleutian Islands Groundfish Trawl 
Fishery

    NMFS proposes separating the BSAI groundfish trawl fishery into 
four fisheries based on target species. These four fisheries are: AK 
Bering Sea and Aleutian Islands Atka Mackerel Trawl Fishery, AK Bering 
Sea and Aleutian Islands Flatfish Trawl Fishery, AK Bering Sea and 
Aleutian Islands Pacific Cod Trawl Fishery, and AK Bering Sea and 
Aleutian Islands Pollock Trawl Fishery. These fisheries operate in 
generally different geographic areas and

[[Page 19370]]

seasons, although some overlap may occur. Where overlap occurs, NMFS is 
able to differentiate in which fishery a vessel is operating when 
incidental mortality and serious injury of a marine mammal occurs 
through a combination of catch data, vessel monitoring systems (VMS) 
information, and observer data, even when a vessel participates in more 
than one fishery on a given trip. These fisheries likewise are managed 
separately by NMFS and the North Pacific Fishery Management Council.

Delineation of GOA Groundfish Trawl Fishery

    NMFS proposes separating the GOA groundfish trawl fishery into four 
fisheries based on target species. These four fisheries are: AK Gulf of 
Alaska Flatfish Trawl Fishery, AK Gulf of Alaska Pacific Cod Trawl 
Fishery, AK Gulf of Alaska Pollock Trawl Fishery, and AK Gulf of Alaska 
Rockfish Trawl Fishery.

Delineation of Bering Sea and GOA Finfish Pot Fishery

    NMFS proposes separating the Bering Sea and GOA finfish pot fishery 
into four fisheries based on target species. These four fisheries are: 
AK Aleutian Islands Sablefish Pot Fishery, AK Bering Sea Sablefish Pot 
Fishery, AK Bering Sea and Aleutian Islands Pacific Cod Pot Fishery, 
and AK Gulf of Alaska Pacific Cod Pot Fishery.

Delineation of Alaska Crustacean Pot Fishery

    NMFS proposes separating the Alaska crustacean pot fishery into 
four fisheries based on target species. These four fisheries are: AK 
Southeast Alaska Shrimp Pot Fishery, AK Southeast Alaska Crab Pot 
Fishery, AK Gulf of Alaska Crab Pot Fishery, and AK Bering Sea and 
Aleutian Islands Crab Pot Fishery.

Delineation of BSAI Groundfish Longline/Set Line Fishery (Federally 
Regulated Waters, Including Miscellaneous Finfish and Sablefish)

    NMFS proposes separating the BSAI groundfish longline/set line 
fishery into four fisheries based on target species. These four 
fisheries are: AK Bering Sea and Aleutian Islands Greenland Turbot 
Longline Fishery, AK Bering Sea and Aleutian Islands Pacific Cod 
Longline Fishery, AK Bering Sea and Aleutian Islands Rockfish Longline, 
and AK Bering Sea and Aleutian Islands Sablefish Longline Fishery.

Delineation of GOA Groundfish Longline/Set Line Fishery (Federally 
Regulated Waters, Including Miscellaneous Finfish and Sablefish)

    NMFS proposes separating the GOA groundfish longline/set line 
fishery into four fisheries based on target species. These four 
fisheries are: AK Gulf of Alaska Sablefish Longline Fishery, AK Gulf of 
Alaska Pacific Cod Longline Fishery, AK Gulf of Alaska Flatfish 
Longline Fishery, and AK Gulf of Alaska Rockfish Longline.

Removal of Fisheries from the LOF

    NMFS proposes removing the AK Bering Sea and Gulf of Alaska Finfish 
Pot Fishery, AK Crustacean Pot Fishery, AK Bering Sea and Aleutian 
Islands Groundfish Longline/Set Line Fishery (federally regulated 
waters, including miscellaneous finfish and sablefish), AK Gulf of 
Alaska Groundfish Longline/Set Line Fishery (federally regulated 
waters, including miscellaneous finfish and sablefish), AK Bering Sea 
and Aleutian Islands Groundfish Trawl Fishery, and AK Gulf of Alaska 
Groundfish Trawl Fishery from the LOF. After reviewing these fisheries, 
NMFS is proposing to differentiate each fishery by target species and 
gear type, which more accurately reflect existing fishery management 
regimes in Alaska. Therefore, removing these fisheries will not 
negatively affect NMFS' ability to analyze and assess serious injury 
and mortality of marine mammals captured incidental to these fisheries. 
A description of the proposed delineation of these fisheries can be 
found above in the Fishery Classification section for the Pacific 
Ocean.

Number of Vessels/Persons

    The estimated number of participants in the ``OR Swordfish Floating 
Longline Fishery'' is updated to 1 based on 2003 permit data.
    The estimated number of participants in the ``WA Puget Sound Region 
Salmon Drift Gillnet Fishery'' is updated to 210 based on 2003 permit 
data.

Commercial Fisheries in the Atlantic Ocean, Gulf of Mexico, and 
Caribbean: Fishery Classification

Gulf of Mexico Blue Crab Trap/Pot Fishery

    In the 2003 LOF (68 FR 41725, July 15, 2003), NMFS provided that it 
would work with the Gulf States Marine Fisheries Commission (GSMFC) and 
the Sea Grant program to better monitor bottlenose dolphin takes in the 
``Gulf of Mexico Blue Crab Trap/Pot Fishery,'' to educate fishers about 
marine mammal interaction issues and ways to reduce takes in the 
fishery, and to continue working on the derelict trap/pot removal 
program. The NMFS Southeast Regional Office has been working closely 
with the GSMFC and Sea Grant to develop outreach materials throughout 
the past year and anticipates distributing these materials in the near 
future. NMFS will continue to monitor strandings and communicate with 
fishers to determine the effectiveness of outreach efforts.
    NMFS has been unable to conduct abundance surveys or analyze Gulf 
bottlenose dolphin stock structure due to budgetary constraints. 
Therefore, the bottlenose dolphin stock structure in the Gulf of Mexico 
is still not well defined at this time. Currently, the vast majority of 
NMFS' resources for bottlenose dolphin research is being expended in 
the Atlantic Ocean to satisfy needs of the Atlantic Bottlenose Dolphin 
Take Reduction Team. As the needs of this existing TRT are met, NMFS 
hopes to shift resources to the Gulf of Mexico to better define 
bottlenose dolphin stock structure in this area. NMFS will reevaluate 
classification of this fishery as relevant information becomes 
available. However, NMFS does not propose any change to the 
classification of this fishery because NMFS lacks adequate information 
at this time.

List of Fisheries

    The following two tables list U.S. commercial fisheries according 
to their assigned categories under section 118 of the MMPA. The 
estimated number of vessels/participants is expressed in terms of the 
number of active participants in the fishery, when possible. If this 
information is not available, the estimated number of vessels or 
persons licensed for a particular fishery is provided. If no recent 
information is available on the number of participants in a fishery, 
the number from the most recent LOF is used.
    The tables also list the marine mammal species and stocks that are 
incidentally killed or injured in each fishery based on observer data, 
logbook data, stranding reports, and fisher reports. This list includes 
all species or stocks known to experience injury or mortality in a 
given fishery, but also includes species or stocks for which there are 
anecdotal or historical, but not necessarily current, records of 
interaction. Additionally, species identified by logbook entries may 
not be verified. Not all species or stocks identified are the reason 
for a fishery's placement in a given category. There are a few 
fisheries that are in Category II that have no recently documented

[[Page 19371]]

interactions with marine mammals. Justifications for placement of these 
fisheries are by analogy to other gear types that are known to cause 
mortality or serious injury of marine mammals, as discussed in the 
final LOF for 1996 (60 FR 67063, December 28, 1995), and according to 
factors listed in the definition of ``Category II fishery'' in 50 CFR 
229.2.
    Table 1 lists commercial fisheries in the Pacific Ocean (including 
Alaska); Table 2 lists commercial fisheries in the Atlantic Ocean, Gulf 
of Mexico, and Caribbean.

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Classification

    The Chief Counsel for Regulation of the Department of Commerce 
certified to the Chief Counsel for Advocacy of the Small Business 
Administration that this proposed rule would not have a significant 
economic impact on a substantial number of small entities. For 
convenience, the factual basis leading to the certification is repeated 
below.
    Under existing regulations, all fishers participating in 
Category I or II fisheries must register under the MMPA, obtain an 
Authorization Certificate, and pay a fee of $25. Additionally, 
fishers may be subject to a take reduction plan and requested to 
carry an observer. The Authorization Certificate authorizes the 
taking of marine mammals incidental to commercial fishing 
operations. NMFS has estimated that approximately 41,600 fishing 
vessels, most of which are small entities, operate in Category I or 
II fisheries, and therefore, are required to register. However, 
registration has been integrated with existing state or Federal 
registration programs for the majority of these fisheries so that 
the majority of fishers do not need to register separately under the 
MMPA. Currently, approximately 5,800 fishers register directly with 
NMFS under the MMPA authorization program.
    This rule proposes to elevate the Hawaii Swordfish, Tuna, 
Billfish, Mahi Mahi, Wahoo, Oceanic Sharks Longline/Set Line Fishery 
to Category I in the LOF. Therefore participants in this fishery 
(140 participants) would be required to register under the MMPA.
    Though this proposed rule would affect a number of small entities, 
the $25 registration fee, with respect to anticipated revenues, is not 
considered a significant economic impact. If a vessel is requested to 
carry an observer, fishers will not incur any economic costs associated 
with carrying that observer. As a result of this certification, an 
initial regulatory flexibility analysis was not prepared. In the event 
that reclassification of a fishery to Category I or II results in a 
take reduction plan, economic analyses of the effects of that plan will 
be summarized in subsequent rulemaking actions. Further, if a vessel is 
requested to carry an observer, fishers will not incur any economic 
costs associated with carrying that observer.
    This proposed rule contains collection-of-information requirements 
subject to the Paperwork Reduction Act. The collection of information 
for the registration of fishers under the MMPA has been approved by the 
Office of Management and Budget (OMB) under OMB control number 0648-
0293 (0.25 hours per report for new registrants and 0.15 hours per 
report for renewals). The requirement for reporting marine mammal 
injuries or moralities has been approved by OMB under OMB control 
number 0648-0292 (0.15 hours per report). These estimates include the 
time for reviewing instructions, searching existing data sources, 
gathering and maintaining the data needed, and completing and reviewing 
the collection of information. Send comments regarding these reporting 
burden estimates or any other aspect of the collections of information, 
including suggestions for reducing burden, to NMFS and OMB (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 Paperwork Reduction Act unless that collection of information 
displays a currently valid OMB control number.
    This proposed rule has been determined to be not significant for 
the purposes of Executive Order 12866.
    An environmental assessment (EA) was prepared under the National 
Environmental Policy Act (NEPA) for regulations to implement section 
118 of the MMPA (1995 EA). The 1995 EA concluded that implementation of 
those regulations would not have a significant impact on the human 
environment. This proposed rule would not make any significant change 
in the management of reclassified fisheries, and therefore, this 
proposed rule is not expected to change the analysis or conclusion of 
the 1995 EA. If NMFS takes a management action, for example, through 
the development of a Take Reduction Plan (TRP), NMFS will first prepare 
an environmental document as required under NEPA specific to that 
action.
    This proposed rule would not affect species listed as threatened or 
endangered under the Endangered Species Act (ESA) or their associated 
critical habitat. The impacts of numerous fisheries have been analyzed 
in various biological opinions, and this proposed rule will not affect 
the conclusions of those opinions. The classification of fisheries on 
the LOF is not considered to be a management action that would 
adversely affect threatened or endangered species. If NMFS takes a 
management action, for example, through the development of a TRP, NMFS 
would conduct consultation under section 7 of the ESA for that action.
    This proposed rule would have no adverse impacts on marine mammals 
and may have a positive impact on marine mammals by improving knowledge 
of marine mammals and the fisheries interacting with marine mammals 
through information collected from observer programs or take reduction 
teams.
    This proposed rule would not affect the land or water uses or 
natural resources of the coastal zone, as specified under section 307 
of the Coastal Zone Management Act.

    Dated: April 8, 2004.
William T. Hogarth,
Assistant Administrator for Fisheries, National Marine Fisheries 
Service.
[FR Doc. 04-8383 Filed 4-12-04; 8:45 am]
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