[Federal Register Volume 73, Number 3 (Friday, January 4, 2008)]
[Rules and Regulations]
[Pages 820-823]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 07-6307]


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DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

50 CFR Part 648

[Docket No. 070717342-7713-02]
RIN 0648-AV42


Magnuson-Stevens Fishery Conservation and Management Act 
Provisions; Fisheries of the Northeastern United States; Atlantic 
Surfclam and Ocean Quahog Fishery; Final 2008-2010 Fishing Quotas for 
Atlantic Surfclams and Ocean Quahogs

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

ACTION: Temporary rule.

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SUMMARY: NMFS is specifying the final quotas for the Atlantic surfclam 
and ocean quahog fisheries for 2008, 2009, and 2010. Regulations 
governing these fisheries require NMFS to publish the final quota 
specifications for the 2008-2010 fishing years. The intent of this 
action is to implement final specifications for allowable harvest 
levels of Atlantic surfclams and ocean quahogs from the Exclusive 
Economic Zone.

DATES: Effective from January 1, 2008 to December 31, 2010.

ADDRESSES: Copies of supporting documents, including the Environmental 
Assessment, the Regulatory Impact Review (RIR), and the Initial 
Regulatory Flexibility Analysis (IRFA) are available from Daniel 
Furlong, Executive Director, Mid-Atlantic Fishery Management Council, 
Room 2115, Federal Building, 300 South New Street, Dover, DE 19904-
6790. A copy of the RIR/IRFA is accessible via the Internet at http://www.nero.noaa.gov/nero/regs/com.html.
    The Final Regulatory Flexibility Analysis (FRFA) consists of the 
IRFA, and the summary of impacts and alternatives contained in the 
Classification section of the preamble of this final rule. Copies of 
the small entity compliance guide are available from Patricia A. 
Kurkul, Regional Administrator, NMFS, Northeast Regional Office, One 
Blackburn Drive, Gloucester, MA 01930-2298.

FOR FURTHER INFORMATION CONTACT: Timothy A. Cardiasmenos, Fishery 
Management Specialist, 978-281-9204.

SUPPLEMENTARY INFORMATION: The Fishery Management Plan for the Atlantic 
Surfclam and Ocean Quahog Fisheries (FMP) requires that NMFS, in 
consultation with the Mid-Atlantic Fishery Management Council 
(Council), specify quotas for surfclams and ocean quahogs for a 3-year 
period, with an annual review, from a range that represents the optimum 
yield (OY) for each fishery. It is the policy of the Council that the 
levels selected allow sustainable fishing to continue at that level for 
at least 10 years for surfclams and 30 years for ocean quahogs. In 
addition to this constraint, the Council policy also considers the 
economic impacts of the quotas. Regulations implementing Amendment 10 
to the FMP (63 FR 27481, May 19, 1998) added Maine ocean quahogs 
(locally known as mahogany quahogs) to the management unit, and 
provided for a small artisanal fishery for ocean quahogs in the waters 
north of 43[deg] 50' N. lat., with an annual quota within a range of 
17,000 to

[[Page 821]]

100,000 Maine bu (5,991 to 35,240 hL). As specified in Amendment 10, 
the Maine mahogany ocean quahog quota is allocated separately from the 
quota specified for the ocean quahog fishery. Regulations implementing 
Amendment 13 to the FMP (68 FR 69970, December 16, 2003) established 
the ability to set multi-year quotas. An evaluation, in the form of an 
annual quota recommendation, is conducted by the Council every year to 
determine if the multi-year quota specifications remains appropriate. 
The fishing quotas must be in compliance with overfishing definitions 
for each species. In proposing these quotas, the Council considered the 
available stock assessments, data reported by harvesters and 
processors, and other relevant information concerning exploitable 
biomass and spawning biomass, fishing mortality rates, stock 
recruitment, projected fishing effort and catches, and areas closed to 
fishing.
    In June 2007, the Council voted to recommend maintaining the 2007 
quota levels of 5.333 million bu (284 million L) for the ocean quahog 
fishery, 3.400 million bu (181 million L) for the Atlantic surfclam 
fishery, and 100,000 Maine bu (35,240 hL) for the Maine ocean quahog 
fishery for 2008-2010. The final quotas for the 2008-2010 Atlantic 
surfclam and ocean quahog fishery are shown in the table below. The 
Atlantic surfclam and ocean quahog quotas are specified in standard bu 
of 53.24 L per bu, while the Maine ocean quahog quota is specified in 
``Maine'' bu of 35.24 L per bu. Because Maine ocean quahogs are the 
same species as ocean quahogs, both fisheries are assessed under the 
same ocean quahog overfishing definition. When the two quota amounts 
(ocean quahog and Maine ocean quahog) are added, the total allowable 
harvest is still lower than the level that would result in overfishing 
for the entire stock.

         2008-2010 ATLANTIC SURFCLAM AND OCEAN QUAHOG\1\ QUOTAS
------------------------------------------------------------------------
                                    2008          2009          2010
------------------------------------------------------------------------
                                 bu      hL     bu     hL     bu     hL
------------------------------------------------------------------------
Surfclams\2\                   3.400   1.810  3.400  1.810  3.400  1.810
Ocean Quahogs\2\               5.333   2.840  5.333  2.840  5.333  2.840
Maine Ocean Quahogs\3\         100,00  35,24  100,0  35,24  100,0  35,24
                                0       0      00     0      00     0
------------------------------------------------------------------------
\1\ Numerical values are in millions, except for Maine ocean quahogs
\2\ 1 bu = 1.88 cubic ft. = 53.24 liters
\3\ 1 bu = 1.2445 cubic ft. = 35.24 liters

Surfclams

    In 1999, the Council expressed its intention to increase the 
surfclam quota to OY over a period of 5 years (OY = 3.4 million bu (181 
million L)). The 2008-2010 status quo surfclam quota was developed 
after reviewing the results of the 44th Northeast Regional Stock 
Assessment Workshop (SAW 44) for surfclams, issued in January 2007. The 
surfclam quota recommendation is consistent with the SAW 44 finding 
that the Atlantic surfclam stock is not overfished, nor is overfishing 
occurring. Estimated fishable stock biomass in 2005 was above the 
management target, and fishing mortality was below the management 
threshold. Even though the total stock biomass is expected to gradually 
decline over the next 3 years due to poor recruitment, the total 
proposed quota of 3.4 million bu (181 million L), if fully harvested, 
would not exceed the fishing mortality threshold. Based on this 
information, the Council recommended, and NMFS has approved, 
maintaining the status quo surfclam quota of 3.4 million bu (181 
million L) for 2008-2010. This quota represents the maximum allowable 
quota under the FMP.

Ocean Quahogs

    The final 2008-2010 quota for ocean quahogs also reflects the 
status quo quota of 5.333 million bu (284 million L) in 2007. SAW 44 
found that the ocean quahog stock is not overfished, nor is overfishing 
occurring. Estimated fishable biomass in 2005 was above the management 
target, and estimated fishing mortality was well below the target 
level. Fishing mortality is not expected to reach the target threshold 
if the proposed quota is harvested each of the 3 years. Similar to 
surfclams, the ocean quahog biomass is expected to decline over the 
next 3 years. There is some evidence of recruitment, and small ocean 
quahogs are found in most regions; however, growth is so slow that 
initial recruitment of year classes to the fishery is delayed for about 
20 years. Based on this information, the Council recommended, and NMFS 
has approved, maintaining the status quo quota of 5.333 million bu (284 
million L) for 2008-2010. This quota level is above current market 
demand, but allows for growth of the market if conditions change.
    The 2008-2010 quota for Maine ocean quahogs is the status quo level 
of 100,000 Maine bu (35,240 hL). In 2006, the State of Maine completed 
a stock assessment of the resource within the Maine Mahogany Quahog 
Zone. This assessment was peer-reviewed as part of SAW 44. Although 
landings per unit of effort have declined since 2002, they remain 
relatively high overall. The findings of the Maine quahog survey did 
not change the status of the entire ocean quahog resource. The quota 
represents the maximum allowable quota under the FMP.

Comments and Responses

    NMFS received no comments on the proposed rule (November 15, 2007; 
72 FR 64187) during the comment period that ended on December 17, 2007.

Classification

    Pursuant to section 304 (b)(1)(A) of the Magnuson-Stevens Fishery 
Conservation and Management Act (Magnuson-Stevens Act), the NMFS 
Assistant Administrator has determined that this final rule is 
consistent with the FMP, other provisions of the Magnuson-Stevens Act, 
and other applicable law. This action is authorized by 50 CFR part 648 
and has been determined to be not significant for purposes of Executive 
Order 12866.
    A delay in the effective date of this final rule would cause a 
disruption in the ordinary commerce of the surfclam and ocean quahog 
fisheries. Individual Transferable Quota (ITQ) shareholders each 
receive a portion of the overall annual quotas for the two species. An 
allocation holder receives an amount of cage tags equivalent to his/her 
share of the overall quota. Fishing for surfclams and ocean quahogs 
begins on January 1, 2008, regardless of the publication of the annual 
quota, as tags for the 2008 fishing year have already been issued by 
the vendor pursuant to Sec.  648.75(b). ITQ allocations are often 
transferred either

[[Page 822]]

permanently or temporarily to meet changing economic circumstances in 
the fishery right from the commencement of these fisheries. Without a 
quota in effect, NMFS cannot make a transfer of part or the entirety of 
an allocation either permanently or temporarily. This inability on the 
part of NMFS to make such transfers effective would preclude the 
intended recipients of such transfers from fishing, thereby engendering 
a negative economic impact on the surfclam and ocean quahog fisheries. 
A delay in the effectiveness of this rule would be contrary to the 
rule's intent to maintain current quota levels that have the full 
support of the fishing industry and facilitate the transfer of quotas 
requested by the industry. Every effort was made to publish this final 
rule as expeditiously as possible. However, the Council could not 
provide its quota specifications until September of 2007. As a result 
of that timing, in order for NMFS to provide a proposed rulemaking 
stage with adequate opportunity for comment, it is necessary to waive 
the 30 day delay in effectiveness, as it would compromise the start of 
the fishing year and thereby undermine the intent of the rule. By 
delaying the transfer of quota to a harvesting vessel, a vessel 
operator may choose to fish during periods when they may otherwise 
choose not. Given the increase in foul weather and hazardous seas 
during the winter months, a vessel's ability to operate safely at sea 
could be compromised. Therefore, there is good cause under 5 U.S.C. 
553(d)(3) to waive the 30-day delayed effectiveness period for the 
implementation of the 2008-2010 surfclam, ocean quahog, and Maine ocean 
quahog quotas.
    NMFS, pursuant to section 604 of the Regulatory Flexibility Act 
(RFA), prepared this FRFA in support of the 2008-2010 Atlantic surfclam 
and ocean quahog specifications. The FRFA incorporates the economic 
impacts summarized in the IRFA and the corresponding RIR that were 
prepared for this action. The IRFA was summarized in the proposed rule 
and is not repeated here. Copies of the IRFA, FRFA, and RIR prepared 
for these quota specifications are available from the Northeast 
Regional Office (see ADDRESSES). A description of why this action was 
taken, the objectives of, and the legal basis for this rule, are 
contained in the preamble to this final rule, and are not repeated 
here.
    There are no Federal rules that duplicate, overlap, or conflict 
with this final rule. There were no public comments received regarding 
the IRFA.
    This action implements final fishing quotas for Atlantic surfclams 
and ocean quahogs for 2008-2010. The Council analyzed four quota 
alternatives for the Atlantic surfclam fishery, five alternatives for 
the ocean quahog fishery, and four alternatives for the Maine ocean 
quahog fishery. Each of the alternative sets included a preferred 
alternative and a ``no action'' alternative. The three approved quotas 
for 2008-2010 are 5.333 million bu (284 million L) for the ocean quahog 
fishery, 3.400 million bu (181 million L) for the Atlantic surfclam 
fishery, and 100,000 Maine bu (35,240 hL) for the Maine ocean quahog 
fishery.

Description and Estimate of the Number of Small Entities to Which This 
Rule Will Apply

    The Small Business Administration (SBA) defines a small commercial 
fishing entity as a firm with gross annual receipts not exceeding $4 
million. In 2006, 38 vessels reported harvesting surfclams and/or ocean 
quahogs from Federal waters under an Individual Transferable Quota 
(ITQ) system. In addition, 25 vessels participated in the limited 
access Maine ocean quahog fishery, for a total of 63 participants in 
the 2006 fisheries. Average 2006 gross income from surfclam ITQ trips 
was $1,182,713 per vessel, and from ocean quahog ITQ trips was 
$1,020,409 per vessel. The Maine ocean quahog fishery reported an 
average value of $160,698 per vessel. Each vessel in this analysis is 
treated as a single entity for purposes of size determination and 
impact assessment. All 63 commercial fishing entities fall under the 
SBA size standard for small commercial fishing entities.
    In addition to the actual vessels that participate in the fishery, 
there are 55 ocean quahog quota allocation owners, 67 surfclam 
allocation owners, and 51 Federal limited access Maine mahogany quahog 
permit holders. An allocation owner may choose to fish or lease his or 
her quota allocation.

A Description of the Reporting, Recordkeeping, or other Compliance 
Requirements of the Final Rule

    This rule does not impose any new reporting, recodkeeping, or other 
compliance requirements. Therefore, the cost of compliance is 
unchanged.

A Description of the Steps Taken to Minimize the Significant Economic 
Impact of This Final Action on Small Entities

    The final quotas for 2008-2010 reflect the same quota levels set 
for 2005-2007. Therefore, it is not expected that there will be any 
different economic impacts beyond status quo resulting from the final 
quota level. Leaving the ocean quahog quota at the harvest level of 
5.333 million bu (284 million L) is not expected to constrain the 
fishery. In fact, actual ocean quahog landings for 2005 and 2006 did 
not exceed 60 percent of the available quota. The total 2007 harvest is 
expected to be similar to that of recent years (as of September 15, 
2007, only 45.4 percent of the quota had been harvested). In 
comparison, 41 percent of the quota had been harvested as of September 
15, 2006.
    The surfclam quota is to be set to the maximum allowed under the 
FMP. In contrast to the ocean quahog harvest, the surfclam fishery has 
harvested over 80 percent of the available quota each year since 2005. 
The Maine ocean quahog quota is to be also set at the maximum allowed 
under the FMP. The Maine ocean quahog quota is often fully harvested on 
an annual basis. It is anticipated that, by maintaining the status quo 
quota level for the next 3 years, the fishing industry will benefit 
from the stability of product demand from the seafood processors and 
being able to predict future fishery performance based on past 
performance from the last 3 years.

Small Entity Compliance Guide

    Section 212 of the Small Business Regulatory Enforcement Fairness 
Act of 1996 states that, for each rule or group of related rules for 
which an agency is required to prepare a FRFA, the agency shall publish 
one or more guides to assist small entities in complying with the rule, 
and shall designate such publications as ``small entity compliance 
guides.'' The agency shall explain the action a small entity is 
required to take to comply with a rule or group of rules. As part of 
this rulemaking process, a small entity compliance guide was prepared. 
Copies of the guide will be sent to all holders of commercial Federal 
Atlantic surfclam, ocean quahog, and the limited access Maine ocean 
quahog fishery permits. The guide will also be available on the 
internet at http://www.nero.noaa.gov. Copies of the guide can also be 
obtained from the Regional Administrator (see ADDRESSES).

Reporting and Recordkeeping Requirements

    This final rule does not impose any new reporting, recordkeeping, 
or other compliance requirements. Therefore, the costs of compliance 
remains unchanged.

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


[[Page 823]]


    Dated: December 31, 2007
John Oliver,
Deputy Assistant Administrator for Operations, National Marine 
Fisheries Service.
[FR Doc. 07-6307 Filed 12-31-07; 2:01 pm]
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