[Federal Register Volume 75, Number 115 (Wednesday, June 16, 2010)]
[Rules and Regulations]
[Pages 34049-34061]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2010-14555]


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DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

50 CFR Part 648

[Docket No. 080228326-0108-03]
RIN 0648-AW30


Magnuson-Stevens Fishery Conservation and Management Act 
Provisions; Fisheries of the Northeastern United States; Northeast 
Skate Complex Fishery; Amendment 3

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

[[Page 34050]]


ACTION: Interim final rule; request for comments.

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SUMMARY: NMFS is implementing approved measures in Amendment 3 to the 
Northeast Skate Complex Fishery Management Plan (Skate FMP), including 
final specifications for the 2010 and 2011 fishing years (FY). 
Amendment 3 was developed by the New England Fishery Management Council 
(Council) to rebuild overfished skate stocks and implement annual catch 
limits (ACLs) and accountability measures (AMs) consistent with the 
requirements of the reauthorized Magnuson-Stevens Fishery Conservation 
and Management Act (Magnuson-Stevens Act). Amendment 3 implements a 
rebuilding plan for smooth skate and establishes an ACL and annual 
catch target (ACT) for the skate complex, total allowable landings 
(TAL) for the skate wing and bait fisheries, seasonal quotas for the 
bait fishery, new possession limits, in season possession limit 
triggers, and other measures to improve management of the skate 
fisheries. This interim final rule also includes skate fishery 
specifications for FY 2010 and 2011, pursuant to the specifications 
process established in Amendment 3.

DATES: Effective July 16, 2010. Comments on the final specifications 
for the 2010 and 2011 fishing years must be received by 5 p.m. on July 
16, 2010.

ADDRESSES: A final environmental impact statement (FEIS) was prepared 
for Amendment 3 that describes the proposed action and other considered 
alternatives and provides a thorough analysis of the impacts of the 
proposed measures and alternatives. Copies of Amendment 3, the FEIS, 
the Regulatory Impact Review (RIR), and the Initial Regulatory 
Flexibility Analysis (IRFA), are available on request from Paul J. 
Howard, Executive Director, New England Fishery Management Council 
(Council), 50 Water Street, Newburyport, MA 01950. These documents are 
also available online at http://www.nefmc.org.
    An environmental assessment (EA) was prepared for the final 2010 
and 2011 specifications. A copy of this EA, and its associated finding 
of no significant impact, is available from National Marine Fisheries 
Service, 55 Great Republic Drive, Gloucester, MA 01930. This document 
is also available online at http://www.nero.noaa.gov/nero/.
    You may submit comments on the final specifications, identified by 
RIN 0648-AW30, by any one of the following methods:
     Electronic Submissions: Submit all electronic public 
comments via the Federal eRulemaking Portal: http://www.regulations.gov.
     Fax: (978) 281-9135, Attn: Tobey Curtis.
     Mail: Patricia A. Kurkul, Regional Administrator, NMFS, 
Northeast Regional Office, 55 Great Republic Drive, Gloucester, MA 
01930. Mark the outside of the envelope, ``Comments on Skate Final 
Specifications for 2010 and 2011.''
    Instructions: No comments will be posted for public viewing until 
after the comment period has closed. All comments received are part of 
the public record and will generally be posted to http://www.regulations.gov without change. All personal identifying 
information (for example, name, address, etc.) voluntarily submitted by 
the commenter may be publicly accessible. Do not submit confidential 
business information or otherwise sensitive or protected information.
    NMFS will accept anonymous comments (enter N/A in the required 
fields, if you wish to remain anonymous). You may submit attachments to 
electronic comments in Microsoft Word, Excel, WordPerfect, or Adobe PDF 
file formats only.

FOR FURTHER INFORMATION CONTACT: Tobey Curtis, Fishery Policy Analyst, 
(978) 281-9273, or Allison McHale, Fishery Policy Analyst, (978) 281-
9103.

SUPPLEMENTARY INFORMATION:

Background

    This interim final rule implements measures contained in Amendment 
3, which was approved by NMFS on behalf of the Secretary of Commerce 
(Secretary) on March 23, 2010. A proposed rule to implement the 
measures contained in Amendment 3 published in the Federal Register on 
January 21, 2010 (75 FR 3434), with public comment accepted through 
February 22, 2010. Details concerning the development of Amendment 3 
were contained in the preamble of the proposed rule and are not 
repeated here.
    The January 21, 2010, proposed rule included proposed 
specifications for FY 2010 and 2011. The proposed specifications were 
included in Amendment 3 based on the best available scientific 
information available at the time the final Amendment 3 document was 
prepared by the Council. Specifically, the proposed specifications 
included the following: (1) ACL = 30,643 mt; (2) ACT = 22,982 mt; and 
(3) TAL = 9,427 mt. These proposed specifications derived from the 
scientific advice of the Council's Scientific and Statistical Committee 
(SSC) that the acceptable biological catch (ABC) for the skate complex 
should not exceed 30,643 mt. This recommendation was developed in 
September 2009 by the SSC, based on the best information considered 
appropriate for use at the time, which included data from the Northeast 
Fisheries Science Center (NEFSC) trawl surveys through spring 2008 for 
little skate, and through fall 2007 for all other species in the skate 
complex.
    Although this was the best scientific information available at the 
time the Council prepared and submitted Amendment 3 for review by NMFS, 
in March 2010, the Council's SSC reconvened to reconsider its ABC 
recommendation for FY 2010 and 2011. The SSC reconsidered its ABC 
recommendation to incorporate the fall 2008 NEFSC trawl survey data, 
which had not been previously incorporated into the SSC's evaluation of 
an appropriate ABC for the skate complex. As a result of the inclusion 
of these additional data, which showed a marked increase in the 
availability of winter skates, the SSC revised its ABC recommendation 
from 30,643 mt to 41,080 mt. Based on the procedures in Amendment 3, a 
change in the SSC's ABC recommendation affects the specifications to be 
implemented, as follows: (1) The ACL is similarly increased to 41,080 
mt; (2) the ACT increases to 30,810 mt; and (3) the TAL increases to 
13,848 mt (the TAL also reflects an updated analysis by the Council's 
Skate Plan Development Team (PDT) on estimated discards of skates 
across all fisheries). The SSC presented its recommendation to revise 
the skate ABC at the April 28, 2010, meeting of the Council. At this 
meeting, the Council accepted the revised ABC and requested that NMFS 
incorporate this new scientific information into the implementation of 
Amendment 3. Therefore, consistent with the request of the Council, the 
final specifications implemented in this interim final rule reflect 
this new scientific information from the Council's SSC, as required 
under National Standard 2 of the Magnuson-Stevens Act (``any regulation 
promulgated to implement any such [fishery management] plan . . . shall 
be based upon the best scientific information available''). But, 
because the scientific basis for setting the FY 2010 and 2011 
specifications changed between the publication of the proposed rule and 
the publication of this interim final rule, the final specifications 
are published as an interim final rule in order to provide the public 
with the

[[Page 34051]]

opportunity to provide comment on the revised specifications.

Approved Measures

New Biological Reference Points

    For all skate species except barndoor, the BMSY proxy 
(biomass target; the biomass level at which maximum sustainable yield 
(MSY) can be attained on a continuing basis) is defined as the 75th 
percentile of the appropriate NEFSC trawl survey (autumn or spring) 
biomass index time series for that species: Autumn 1975-2007 for 
clearnose; spring 1982-2008 for little; autumn 1967-2007 for winter and 
rosette; and autumn 1963-2007 for smooth and thorny. For barndoor, the 
BMSY proxy remains unchanged as the average 1963-1966 autumn 
survey biomass index, because the survey did not catch barndoor skates 
during a protracted time period of years.
    A skate species is considered overfished if its 3-year moving 
average survey biomass falls below one-half of its BMSY 
proxy value (biomass threshold). Therefore, because the current biomass 
indices for thorny and smooth skates are below their respective 
thresholds, they are considered overfished (Table 1). The current 
biomass for clearnose and rosette skates are above their respective 
biomass targets, so they are considered to be above BMSY. 
Winter, little, and barndoor skates are not overfished, but not 
completely rebuilt to their biomass targets (Table 1).
     Fishing mortality reference points, defined by percentage changes 
in the survey biomass indices, remain unchanged. No skates are 
currently subject to overfishing, although thorny skate was considered 
to be subject to overfishing in 2007. The previous and revised biomass 
reference points are shown in Table 1, relative to the most recent 
survey biomass for each species.

Table 1. Comparison between current skate biomass status (through autumn 2008) with previous and revised biomass
                                                reference points.
                                     Stratified mean survey biomass (kg/tow)
----------------------------------------------------------------------------------------------------------------
                                       Current         Previous         Revised         Previous       Revised
           Skate Species               Biomass        Threshold        Threshold         Target        Target
----------------------------------------------------------------------------------------------------------------
Winter                              5.23           3.43             2.80             6.46           5.60
Little                              5.04           3.27             3.51             6.54           7.03
Barndoor                            1.02           0.81             0.81             1.62           1.62
Thorny                              0.42           2.20             2.06             4.41           4.12
Smooth                              0.13           0.16             0.14             0.31           0.29
Clearnose                           1.04           0.28             0.38             0.56           0.77
Rosette                             0.052          0.015            0.024            0.029          0.048
----------------------------------------------------------------------------------------------------------------

2010-2011 Final Specifications (ACL, ACT, and TAL)

    The following final specifications differ from the specifications 
proposed in the January 21, 2010, proposed rule. The regulation at 
Sec.  648.320(a)(7) regarding the annual review and specification 
process provides that ``if the specifications published in the Federal 
Register differ from those recommended by the Council, the reasons for 
any differences must be clearly stated and the revised specifications 
must satisfy the criteria set forth in this section.'' As explained 
above, the final specifications implemented in this interim final rule 
are based on the revised ABC recommendation of the Council's SSC. The 
proposed specifications were based on the best information available at 
the time the Council prepared Amendment 3, but this information changed 
as a result of the March 17, 2010, meeting of the SSC. Thus, these 
final specifications differ from those recommended by the Council in 
Amendment 3 to ensure that the final FY 2010 and 2011 specifications 
are based on the best available scientific information. Also, because 
these final specifications were calculated according to the procedures 
in Amendment 3, stemming from the revised ABC recommendation, the final 
specifications are determined to satisfy the criteria set forth in 
Amendment 3.
    In each FY, the ACL for the skate complex will be set equal to the 
ABC recommended by the Council's SSC. Through FY 2011, the SSC has 
recommended an ABC based on the median catch/biomass exploitation rate 
of the skate complex multiplied by the 2005-2008 average survey 
biomass, which is 90.566 million lb (41,080 mt) per year. To account 
for management uncertainty, an ACT will be set at 75 percent of the 
ACL, or 67.924 million lb (30,810 mt) per year. Due to the difficulties 
in monitoring skate discards in all fisheries during a FY, a projection 
of total annual dead discards will be subtracted from the ACT to 
generate the TAL for the skate fisheries. After deducting an estimate 
of skate landings from vessels fishing solely in state waters 
(approximately 3 percent of the total landings), the remaining TAL for 
Federal waters in FY 2010 and 2011 will be 30.530 million lb (13,848 
mt) per year.
    The TAL will be allocated between the skate wing fishery and the 
skate bait fishery based on historic landings proportions. The skate 
wing fishery predominantly lands winter skate, while the bait fishery 
predominantly lands little skate. The skate wing fishery will receive 
66.5 percent of the TAL, or 20.302 million lb (9,209 mt), and the skate 
bait fishery will receive 33.5 percent of the TAL, or 10.227 million lb 
(4,639 mt). Landings of skates will be monitored and allocated to the 
appropriate fishery quota through information currently required to be 
submitted by seafood dealers on a weekly basis.
    Because this action was not effective at the start of the FY on May 
1, 2010, all skate landings that accrue from May 1, 2010, until the 
date of implementation of this interim final rule will be counted 
against the respective skate wing and bait TALs for FY 2010, as 
described above. The rationale for this attribution of FY 2010 landings 
was explained in the January 21, 2010, proposed rule.

Possession Limits and Seasons

    As part of the final specifications for FY 2010 and 2011, this 
interim final rule implements a possession limit for the skate wing 
fishery that differs from the possession limit in Amendment 3 and the 
proposed rule. The possession limit for the wing fishery is revised in 
order to reflect the change in TAL allocated to the wing fishery as a 
result of the ABC. Under Amendment 3, the wing fishery landings are 
assessed against a yearly TAL that is managed primarily through the use 
of a possession limit on landings designed to constrain landings such 
that the TAL is

[[Page 34052]]

not exceeded. In Amendment 3, the proposed reduction in allowable 
landings in the wing fishery to the initial 13.821 million lb (6,269 
mt) TAL required a substantial reduction in the possession limit, from 
the original limits of 10,000 lb (4,536 kg) wing weight for all trips 
less than 24 hr in duration (and 20,000 lb (9,072 kg) wing weight for 
all trips greater than 24 hr in duration) to the proposed limit of 
1,900 lb (862 kg) wing weight for all trips, regardless of trip 
duration. Consistent with the new ABC recommendation, and the resultant 
increase in the wing fishery TAL from the 13.821-million-lb (6,269-mt) 
TAL in the proposed rule to the 20.302-million-lb (9,209-mt) TAL 
implemented in this interim final rule, the Skate PDT recently 
completed an analysis indicating that the proposed 1,900-lb (862-kg) 
wing possession limit should also be revised.
    This change from the proposed rule is necessary to ensure that the 
management measure is based on the best available scientific 
information, and to provide an opportunity for the fishery to attain 
the TAL. Based on PDT analyses, if fishing patterns in FY 2010 and 2011 
are similar to those in FY 2007-2009, the proposed 1,900-lb (862-kg) 
wing possession limit was expected to have constrained total wing 
landings to approximately two-thirds of the overall TAL, while 
potentially substantially increasing regulatory discards of marketable 
skates. An increase in the wing possession limit from the level 
initially proposed provides a greater likelihood that the fishery will 
have the opportunity to fully attain the TAL, and reduces the potential 
for a substantial increase in regulatory discards.
    All vessels possessing, retaining, and landing skates will continue 
to be required to obtain a Federal open access skate permit. Subject to 
the additional restrictions described in the following sections, a 
possession limit of 5,000 lb (2,268 kg) wing weight (11,350 lb (5,148 
kg) whole weight) is implemented for any vessels in possession of 
skates, unless the vessel is in possession of a Skate Bait Letter of 
Authorization (LOA). All skates landed in wing form or sold for use as 
food will accrue against the skate wing TAL. To ensure that the skate 
wing TAL is not exceeded, when 80 percent of the annual skate wing TAL 
is landed, the 5,000-lb (2,268-kg) skate wing possession limit will be 
reduced to 500 lb (227 kg) wing weight (1,135 lb (515 kg) whole weight) 
for the remainder of the FY. The purpose of this measure is to reduce 
incentives to target skates, but allow some incidental catches of 
skates to be landed, rather than discarded.
    This rule retains the requirement that a vessel possessing a valid 
Federal skate permit must also fish under an Atlantic sea scallop, 
Northeast (NE) multispecies, or monkfish day-at-sea (DAS) in order to 
possess, retain, and land skates, unless that the vessel is otherwise 
exempted under Sec.  648.80.
    This action also implements an incidental skate trip limit of 500 
lb (227 kg) wing weight, or 1,135 lb (515 kg) whole weight, for any 
vessel issued a Federal skate permit that is not fishing under a DAS.
    A possession limit of 20,000 lb (9,072 kg) whole weight is 
implemented for vessels participating in the skate bait fishery that 
also possess a Skate Bait LOA. The existing requirements of the Skate 
Bait LOA will remain in effect, including the requirement to land 
skates in only whole form, to be sold only as bait, a maximum skate 
size limit of 23 inches (58 cm) total length, and a minimum 
participation period of 7 days. Vessels that do not possess a Skate 
Bait LOA, or that land any combination of whole skates and skate wings 
(even if the vessel possesses a Skate Bait LOA) are subject to the 
appropriate wing fishery possession limit. To help maintain a 
consistent market supply of bait skates, the skate bait TAL will be 
split into three quota periods per year. All skates landed in whole 
form that are sold for use as bait will accrue against the skate bait 
TAL. When 90 percent of the skate bait quota is harvested in each quota 
period, the possession limit will be reduced to the whole weight 
equivalent of the skate wing fishery possession limit until the start 
of the next period, whether it be 5,000 lb (2,268 kg) or 500 lb (227 
kg) wing weight at the time.
    The bait skate possession limit implemented in this interim final 
rule is the same as that recommended by the Council in Amendment 3 and 
in the proposed rule. Although the TAL allocated to the bait fishery is 
increased in this interim final rule from the level in Amendment 3 and 
the proposed rule, similar to the wing fishery TAL, the basis for 
establishing a possession limit for the bait fishery, and the level at 
which that possession limit was set, was different than for the wing 
fishery. Rather than an overall annual TAL, the bait fishery TAL is 
subdivided into three quota periods. When landings of bait skates are 
projected to reach 90 percent of the quota for each quota period, the 
bait fishery possession limit is reduced to the standing wing fishery 
possession limit, until the start of the next quota period. Because of 
concerns that derby-style fishing, in conjunction with the open-access 
nature of the bait fishery, could result in early ``closures'' of the 
bait fishery (so-called due to the larger volumes of bait skates needed 
to supply the bait market) that would disrupt the market for bait 
skates and have substantial negative consequences for the lobster 
fishery that is largely dependent on skates for bait, the 20,000-lb 
(9,072-kg) possession limit was suggested by members of the Council's 
Skate Industry Advisory Panel as a mechanism to control the pace at 
which the landings approached the quota period limits.
    As an additional conservation measure, vessels declared to be 
fishing on a Northeast Multispecies Category B DAS will have a skate 
possession limit of 220 lb (100 kg) wing weight (500 lb (227 kg) whole 
weight).

Accountability Measures

    If the annual TAL allocated to either fishery is exceeded by more 
than 5 percent in a given year, the possession limit trigger (80 
percent in the wing fishery, 90 percent in the bait fishery) will be 
reduced by 1 percent for each 1-percent overage for that fishery. This 
measure is intended to help prevent repeated excessive TAL overages.
    If it is determined that the ACL for the skate complex was exceeded 
in a given year, including landings and estimates of discards, then the 
ACL-ACT buffer (25 percent, initially) will be increased by 1 percent 
for each 1-percent overage. For example, if the ACL is exceeded by 5 
percent, the ACL-ACT buffer will be increased to 30 percent in the 
subsequent fishing year, which is intended to effectively reduce 
allowable landings.

Annual Review, SAFE Reports, and Specifications Process

    In place of the ``Skate Baseline Review'' process included in the 
original Skate FMP, the Skate PDT will convene annually to review skate 
stock status, fishery landings and discards, and determine if any AMs 
were triggered by fishing in the previous year. The annual review will 
also incorporate an assessment of changes to other fishery management 
plans that may impact skates, and determine if changes to skate 
management measures may be warranted. If changes to the Skate FMP are 
warranted, the Skate PDT could then recommend to the Council that 
changes to the skate management measures be made via specifications or 
framework adjustment. Specifications for the skate fisheries may be 
implemented for up to 2 years.

[[Page 34053]]

    A Stock Assessment and Fishery Evaluation (SAFE) report for the 
skate complex will be completed every 2 years by the Skate PDT. The 
SAFE report will be the primary vehicle for the presentation of all 
updated biological and socio-economic information regarding the skate 
complex and its associated fisheries, and provide source data for any 
adjustments to the management measures that may be needed to continue 
to meet the goals and objectives of the FMP.

Comments and Responses

    A total of 11 comments were received on the proposed rule and the 
amendment from 4 individuals (2 comments from the same individual), 3 
industry groups, 2 state agencies (Massachusetts Division of Marine 
Fisheries (MADMF) and Rhode Island Department of Environmental 
Protection (RIDEM)), and the Council. Four commenters expressed either 
general or specific support for the management measures in Amendment 3, 
one commenter disagreed with NMFS's interpretation of certain 
provisions necessary to implement the amendment, and four commenters 
opposed the implementation of Amendment 3. One commenter appeared to be 
confused about which alternatives were selected by the Council in 
relation to those that NMFS included in the proposed rule. The comments 
opposing Amendment 3 and its proposed rule focused on the expected 
negative economic impacts of the Amendment, particularly the impacts 
associated with the proposed reductions in the TALs and the possession 
limits.
    This section summarizes the principle comments contained in the 
individual comment letters that pertained to Amendment 3 and the 
proposed rule, and NMFS's response to those comments. Any comments 
received that were not specific to the management measures contained in 
the Amendment 3 proposed rule, or in the amendment document, are not 
responded to in this interim final rule.
    Comment 1: The Council noted that the regulatory text describing 
the AMs in Sec.  648.323 required further clarification to clearly 
reflect the Council's intent. Specifically, the Council proposed that 
the term ``next fishing year'' with respect to the description of the 
AM to address TAL overages described in section 5.1.3.2 of the 
amendment, should refer to the year immediately following the year in 
which the TAL overage occurs. Additionally, the Council noted that the 
AM to adjust the ACL buffer if skate catches exceed the ACL would be 
applied in the second fishing year following the year in which the 
overage occurred, and requested that the language in Sec.  648.323(b) 
be clarified to be consistent with the description provided in section 
5.1.3.3 of the amendment.
    Response: In this interim final rule, NMFS has revised Sec.  
648.323(b) so that it is clear that any adjustment of the ACL buffer 
made necessary due to an overage of the ACL would be implemented in the 
second year following the year for which the overage is determined to 
have occurred. However, with respect to the TAL overage issue raised by 
the Council, the amendment provides that, if upon review of the 
complete landings data from a FY it is determined that a TAL is 
exceeded by more than 5 percent, the trigger point at which the 
possession limit is reduced would be adjusted by the same percentage 
``in the next FY.'' For example, if the skate wing TAL is exceeded by 
10 percent in one FY, then the AM requires that the wing possession 
limit trigger would be changed from 80 percent of the wing TAL to 70 
percent of the wing TAL. However, the FMP is vague as to the meaning of 
the ``next'' FY. Due to the time lags inherent in data collection, and 
the time necessary to ensure that complete data are used to determine 
whether a TAL has been exceeded, including time for late data to be 
collected and entered into the system, data processing, audits, and 
analysis, it typically would take several months after the end of a FY 
before NMFS would be able to determine the full extent to which a TAL 
may have been exceeded. Thus, in all discussions with the Council on 
this issue, NMFS staff advised the Council that it would not be 
practicable to make such an adjustment in the FY that immediately 
follows the year in which the overage occurred. However, in their 
comment letter on the proposed rule, the Council states that this was, 
in fact, their intent, and that such AMs should be imposed in the year 
immediately following the year in which the overage occurred.
    In order to implement such a process, at least two rulemakings 
would be required: The first would be completed in advance of the start 
of a FY, and would establish the specifications based on the best 
available information at the time; and the second would be completed 
several months (potentially up to 6 months) after the start of the FY, 
to adjust the TAL trigger points to account for any overages determined 
to occur in the prior FY. This process, and the implications for 
disruption to the on-going FY, were never discussed by the Council nor 
analyzed in the Amendment 3 document. Therefore, under its authority at 
section 305(d) of the Magnuson-Stevens Act, NMFS retains the language 
that this AM would be implemented in the FY that follows the year in 
which the overage is identified (i.e., an overage in 2010 would be 
identified in 2011, once complete data on FY 2010 are available, and 
the AM would be implemented in FY 2012).
    Comment 2: The Council noted that section 5.1.5 of the amendment 
recommended that the skate bait fishery TAL be monitored based upon 
attributing skate landings by vessels with a valid, active Skate Bait 
LOA to the skate bait fishery, regardless of how those landings are 
classified by Federal dealers (i.e., as either food or bait). The 
Council's concern appears to be that dealers may misclassify skates 
landed in one form as another product form due to processing and/or 
marketing reasons. The Council further states that the monitoring 
method proposed by NMFS in Sec.  648.322(a) may lack transparency and 
result in unexpected possession limit adjustments.
    Response: NMFS disagrees that the TAL monitoring method proposed by 
the Council is the best approach to accurately monitoring the skate 
TALs being established through this amendment. Council and NMFS staff 
engaged in several discussions on this issue during the development of 
Amendment 3. As a result of those discussions, which involved NMFS 
staff experienced in monitoring landings of other NE fisheries, NMFS 
determined that using the product classification provided by Federal 
dealers, as required under Sec.  648.7(a)(1)(i), is the most reliable 
approach to monitoring the skate TALs, because it most accurately 
reflects how the product is being utilized, versus the form (wing or 
whole) in which it was landed. Furthermore, the regulations deemed by 
the Council to be consistent with Amendment 3 clearly state that the 
dealer's product classification will be used to allocate skate landings 
to the appropriate TAL, not possession of the Skate Bait LOA as 
suggested by the Council in the comments on the proposed rule. Thus, 
the method described in the proposed rule to monitor skate landings is 
being implemented in this interim final rule.
    Comment 3: The Council further noted that a provision in Sec.  
648.322(b) of the proposed regulations would have exempted vessels 
targeting skate that also participate in an approved sector under the 
NE Multispecies FMP from the requirement to use either a NE 
multispecies, monkfish, or scallop DAS

[[Page 34054]]

in order to land skate wings was not the intent of the Council in 
developing Amendment 3. The Council cites the baseline measure 
identified in section 4.16.1 of the original Skate FMP as evidence that 
the Skate FMP relies on the DAS mechanism in other fisheries to control 
access to the skate resource. The Council also notes that section 5.1.8 
of Amendment 3 establishes a 500-lb (227-kg) whole weight (200-lb (91-
kg) wing weight) possession limit for vessels fishing under a NE 
multispecies Category B DAS to prevent vessels from using these DAS to 
target skates because these DAS were originally intended under the NE 
Multispecies FMP to allow vessels to target stocks at ``healthy'' 
biomass levels, while Amendment 3 is intended to reduce skate fishing 
effort. The Council further cites inequity with non-sector vessels and 
concern over how the removal of the DAS requirement for sector vessels 
could increase targeting of skates by these vessels.
    Response: The Council's Amendment 3 document is internally 
inconsistent with respect to this issue, stating that vessels targeting 
skates must be under a DAS in some sections and not in others. 
Furthermore, the regulations deemed by the Council to be consistent 
with Amendment 3 at its April 2009 meeting were silent on this issue. 
As a result, NMFS included a provision in the proposed rule to address 
the complicated interaction between the new NE multispecies sectors 
authorized by Amendment 16 and the skate fishery. However, given the 
Council's comments on this issue, it is clear that it did not intend 
for sector vessels to be exempt from DAS requirements for the purpose 
of targeting skate wings. Thus, it appears the regulations deemed by 
the Council to be consistent with Amendment 3 were consistent with its 
intent. Therefore, this interim final rule removes the sector provision 
in the proposed rule from the regulations. As a result, all vessels 
landing skate wings in excess of the proposed 500-lb (227-kg) (wing 
weight) incidental limit will be required to utilize a NE multispecies, 
monkfish, or scallop DAS. This change is consistent with the Council's 
comments on this issue, as well as similar comments made by MADMF.
    Comment 4: Three industry members and one industry group submitted 
comments recommending that some form of limited access or history-based 
allocations be developed and implemented for the bait skate fishery to 
mitigate the economic impacts of Amendment 3 and ensure a steady supply 
of bait for the lobster fishery. Three of these individuals 
specifically asked that such a provision be included in Amendment 3.
    Response: This measure was not included nor specifically considered 
in Amendment 3, and, therefore, NMFS has no legal authority to 
establish such a measure as part of the implementation of Amendment 3. 
However, the Council is aware that some members of the bait skate 
fishery would like such a program, and on July 30, 2009, at the request 
of the Council, NMFS established a control date for the bait skate 
fishery for this purpose. The effect of this control date is to 
preserve the opportunity for the Council, should it elect at some time 
in the future to develop and implement a limited access program for the 
bait fishery that may distinguish participation before and after July 
30, 2009. The Council may take up this issue at any time deemed 
appropriate.
    Comment 5: One individual, two industry groups, and two state 
agencies raised concerns about the TALs and possession limits proposed 
in Amendment 3. The commenters suggest that new scientific information 
indicates that the TALs proposed in the January 21, 2010, proposed 
rule, which would have represented substantial reductions from recent 
landings, along with the proposed possession limits, are unnecessary 
and would result in economic harm to the fishing industry dependent on 
skates. These commenters urged NMFS and the Council to incorporate this 
new scientific information as soon as possible and set FY 2010 total 
allowable catch and trip limits accordingly.
    Response: The ``new scientific information'' referred to in the 
comment letters is the 2008 fall trawl survey data, which were reviewed 
by the SSC at its March 17, 2010, meeting. As explained earlier in this 
preamble, the SSC reconsidered the FY 2010-2011 ABC recommendation for 
the skate complex using the updated survey data, and provided a new ABC 
recommendation of 41,080 mt. Based on the recommendation of the SSC, 
the Skate PDT met on April 7, 2010, to discuss options for revising the 
trip limits for the wing fishery to achieve the new target TAL. 
Therefore, as urged by these commenters, this interim final rule 
revises the specifications in the proposed rule and implements final 
specifications that are consistent with the new scientific information. 
This interim final rule adjusts the ABC, associated TALs, and wing 
possession limit to be consistent with the most recent recommendation 
of the SSC, as requested by the Council.
    Comment 6: One individual submitted a comment opposing a bait trip 
limit lower than the amount he currently catches, and stated that the 
wing fishery should not be included in the bait fishery.
    Response: This interim final rule implements a trip limit of 20,000 
lb (9,072 kg) of whole skate for the skate bait fishery. Originally, 
the Council's preferred option had no trip limit for the bait fishery, 
but relied entirely on a seasonal quota to control landings. However, 
at the request of members of the bait fishery that serve on the 
Council's industry advisory panel, the Council adopted a 20,000-lb 
(9,072-kg) trip limit implemented in this interim final rule as a means 
of ensuring a steady supply of bait by preventing the seasonal quotas 
from being reached too quickly. Additionally, NMFS clarifies that the 
skate wing fishery is not considered part of the bait skate fishery. 
The Council and NMFS recognize the differences between these two 
fisheries and, through the Skate FMP, have adopted specific measures to 
manage these fisheries differently. This individual may be confused as 
to how the TALs for the skate wing fishery and the bait skate fishery 
are derived. An overall TAL is established for the NE skate complex, 
which is then split into specific TALs for the skate wing fishery and 
bait skate fishery based upon the percentages approved in Amendment 3 
and implemented through this interim final rule.
    Comment 7: In addition to the comments above regarding the proposed 
TAL and possession limits, RIDEM also provided several other comments. 
The RIDEM questioned the rationale for imposing ``drastic reductions'' 
on the bait skate fishery, suggested that the proposed rule is contrary 
to the alternatives selected by the Council, and suggested that steps 
should be taken to address the seasonality of the bait skate fishery 
and the need for a steady supply of bait skates.
    Response: NMFS is not proposing to implement an alternative not 
selected by the Council. RIDEM suggests that the Council selected 
alternative 1B for the wing fishery and alternative 4 for the bait 
fishery; however, the Amendment 3 document, and the Council record, 
clearly indicate that the Council's final decision was to select 
alternative 3B for the wing fishery, along with alternative 4 for the 
bait fishery. Alternative 1B would have required implementation of time 
and area closures for all fishing gear capable of catching skates, 
which would have included gear used in the sea scallop, monkfish, and 
groundfish fisheries. This alternative was not favored by either the 
Council or the fishing industry that provided

[[Page 34055]]

comments to the Council during the development of Amendment 3.
    As to the comments on the measures for the bait fishery, the 
Amendment 3 document clearly explains that the catch and landings of 
skates cannot be reliably distinguished by species, and that the best 
scientific advice from the Council's SSC is to establish catch limits 
(ABC, ACL, TALs) at the complex level (that is, inclusive of all seven 
skate species). Therefore, if the complex-level ABC is reduced, or 
discards of skates increase, then the resulting reduction in the 
overall skate TAL would necessitate a reduction in the TALs available 
to both the bait and wing fisheries. Also, RIDEM appears to 
misunderstand the specific actions proposed in Amendment 3 for the bait 
fishery. The proposed system of three quota periods (rather than a 
single annual quota) was designed precisely to maximize the probability 
of ensuring a steady supply of bait skates when most needed. The annual 
TAL is not divided equally among the three quota periods, but is 
allocated based on evidence of the seasonality of this fishery; in 
fact, 66.7 percent of the annual TAL is allocated to the quota period 
May-October, which is the season RIDEM indicates has the highest demand 
for bait skates. Also, the 20,000-lb (9,072-kg) possession limit 
proposed for the bait skate fishery was suggested initially by members 
of the bait skate fishing industry as a way to maintain a consistent 
supply of skates by controlling landings and avoiding a derby fishery.

Changes From Proposed Rule to Interim Final Rule

    At its April 2009 meeting, the Council reviewed the draft 
regulations and deemed them necessary and appropriate for 
implementation of Amendment 3, as required under section 303(c) of the 
Magnuson-Stevens Act. Technical changes to the regulations deemed 
necessary by the Secretary for clarity may be made, as provided under 
sections 304(b) and 305(d) of the Magnuson-Stevens Act. This interim 
final rule makes minor technical changes to the proposed rule to 
address an issue of clarity concerning ACL overages that was raised by 
the Council in its comments; to clarify the regulatory text concerning 
the Skate Bait LOA; and to correct an incorrect cross-reference in the 
proposed rule. These changes are listed below in the order in which 
they appear in the regulations.
    In Sec.  648.322(c), the wording ``when a vessel is fishing 
pursuant to the terms of the authorization'' is added to the 
introductory paragraph for clarity. Additionally, the last sentence 
under Sec.  648.322(c)(4) is removed and a new Sec.  648.322(c)(5) is 
added to more clearly reflect the conditions under which a vessel in 
possession of a Skate Bait LOA may retain skate wings.
    In Sec.  648.323(b), the phrase ``in the subsequent fishing year'' 
is revised to read ``in the second fishing year following the fishing 
year in which the ACL overage occurred,'' to more accurately reflect 
when the intended action will occur.
    In Sec.  648.323(c), the cross-reference to paragraph Sec.  
648.323(c) is corrected to read paragraph (d).
    In addition to the changes identified above, and consistent with 
the requirement under National Standard 2 of the Magnuson-Stevens Act 
that ``any regulation promulgated to implement any such [FMP] . . . 
shall be based upon the best scientific information available,'' NMFS 
is implementing final specifications for FY 2010 and 2011 that differ 
from the proposed specifications. The authority for NMFS to deviate 
from the specifications included in Amendment 3 is provided at Sec.  
648.320(a)(7), which stipulates that the specifications published in 
the Federal Register may differ from those recommended by the Council, 
so long as the reasons for the differences are clearly stated and the 
revised specifications satisfy the criteria in the regulations. This 
regulation (Sec.  648.320(a)(7)) was deemed by the Council to be 
necessary and appropriate for the implementation of Amendment 3, and 
was included in the January 21, 2010, proposed rule. The scientific 
basis for the revised final specifications is provided earlier in the 
preamble to this interim final rule and is not repeated here. As part 
of the final specifications for FY 2010 and 2011, the following 
regulation has been revised.
    In Sec.  648.322(b)(1), the skate wing possession limit is revised 
to read ``Up to 5,000 lb (2,268 kg) of skate wings (11,350 lb (5,148 
kg) whole weight) per trip, except . . .''

Classification

    The Administrator, Northeast Region, NMFS, determined that the 
management measures implemented by this interim final rule are 
necessary for the conservation and management of the NE skate fishery, 
and are consistent with the Magnuson-Stevens Act and other applicable 
laws.
    This interim final rule has been determined to be not significant 
for purposes of Executive Order (E.O.) 12866.
    The Council prepared an FEIS for Amendment 3. A notice of 
availability was published on January 22, 2010 (75 FR 3730). The FEIS 
describes the impacts of Amendment 3 measures on the environment. Most 
of these measures were designed to reduce skate landings. As a result, 
the impacts are primarily social and economic, as well as biological. 
In general, all biological impacts are expected to be positive. 
Although some of the economic and social impacts may be negative in the 
short term, particularly for vessels that have traditionally targeted 
or relied substantially on sales of skates, the long-term social and 
economic benefits of sustainable skate fisheries would be positive. In 
approving the Amendment 3 on March 23, 2010, NMFS issued a Record of 
Decision (ROD) identifying the selected alternatives. A copy of the ROD 
is available from NMFS (see ADDRESSES).
    The Assistant Administrator for Fisheries, NOAA, finds good cause 
pursuant to 5 U.S.C. 553(b)(B) to waive prior notice and the 
opportunity for public comment on the revised final specifications for 
FY 2010 and 2011 because it is unnecessary, impracticable, and would be 
contrary to the public interest. On January 21, 2010, NMFS published a 
proposed rule in the Federal Register for Amendment 3 to the Skate 
Complex FMP. This proposed rule included proposed specifications for FY 
2010 and 2011 that were consistent with the best scientific information 
available at the time (i.e., the September 2009 recommendations of the 
Council's SSC) and that were derived according to the protocols in 
Amendment 3 for calculating an ACT and associated TALs based on the ABC 
recommendation. After the comment period on the proposed rule closed, 
but before this interim final rule was prepared, the Council's SSC 
reconvened in late March 2010 to consider newly available information 
regarding the status of the skate complex. As a result of this new 
information, the SSC revised its recommendation for the skate ABC for 
FY 2010 and 2011. At its April 28, 2010, meeting, the Council accepted 
the revised ABC and requested that NMFS incorporate this new scientific 
information into the implementation of Amendment 3. The final 
specifications implemented in this interim final rule are consistent 
with the new ABC recommendation, which is now considered to be the best 
scientific information available.
    Providing an additional opportunity for public comment on the final 
specifications is unnecessary because the public was provided an 
opportunity to consider, and provide comments on, the changes to the 
specifications resulting from the revised ABC recommendation in advance 
of and

[[Page 34056]]

during a public meeting of the Council held on April 28, 2010, and NMFS 
has fully considered those comments in modifying the specifications in 
this interim final rule.
    The April 28, 2010, Council meeting was open to the public, and 
prior notice of this meeting was announced in the Federal Register on 
April 8, 2010 (75 FR 17901). The meeting notice explained that the 
Council's SSC would provide its report to the Council on the revised 
ABC recommendation for skates, and that the Council would consider 
taking action and potentially revising management measures for the 
skate fishery. Members of the skate fishing industry and the general 
public attended the meeting, and several provided comments to the 
Council on the issue at hand (i.e., revising the FY 2010 and 2011 
specifications to be consistent with the new ABC recommendation). At 
that meeting, following an open public discussion, the Council adopted 
a motion to incorporate the new ABC from the SSC into Amendment 3 and 
adjust the skate wing possession limit. The motion passed unanimously, 
with one abstention. Also, based on the comments received on the 
proposed rule, and the public review by the Council of the new ABC and 
its implications for the FY 2010 and 2011 specifications, there is 
widespread expectation in the skate fishing industry that the 
specifications will be revised as soon as possible to reflect the new 
ABC. Therefore, providing an additional opportunity for public comment 
on the final specifications is unnecessary.
    Providing an additional opportunity for public comment on the final 
specifications is impracticable and contrary to the public interest for 
two reasons: (1) FY 2010 began on May 1, 2010, and until these final 
specifications are implemented, there is significant uncertainty and 
confusion within the fishing industry regarding the regulations to 
which the fishery is currently subject, and as to the regulations that 
will be implemented for the remainder of FY 2010; and (2) until these 
final specifications are implemented, the fishery is subject to the 
less restrictive measures in place prior to Amendment 3, which are 
inconsistent with the best available scientific information on the 
status of the skate resource and could result in disruptions to the 
fishing industry. Amendment 3 to the Skate FMP represents a significant 
change in the management regime for the skate fishery. For one, 
Amendment 3 establishes an ACL and AMs consistent with the reauthorized 
Magnuson-Stevens Act. As part of the ACL and AM management structure, 
specific TALs are derived and allocated separately to the skate wing 
and bait skate segments of the skate fishery. A possession limit is 
imposed for the first time on the bait skate fishery, which will now 
operate under three seasonal quotas, with the potential for the 
possession limit to be reduced if the seasonal quota trigger threshold 
is reached. Although the skate wing fishery has operated under a 
possession limit prior to Amendment 3, the amendment proposed a 
significant reduction in this limit (and although higher than initially 
proposed, these final specifications implement a possession limit that 
remains substantially below the pre-Amendment 3 limits), and the wing 
fishery now faces further restrictions in allowable landings if the TAL 
trigger threshold is reached too early in the FY. These new measures 
are necessary for the conservation and management of the skate 
resources, and are required under the reauthorized Magnuson-Stevens 
Act. However, until this interim final rule, including the revised 
final specifications, is implemented, the fishery remains free to 
operate under the less restrictive pre-Amendment 3 regulations.
    Continued operation under the less restrictive pre-Amendment 3 
regulations for the time it would take to proceed with an additional 
proposed rule and opportunity for public comment would significantly 
increase the risk of substantial disruptions to the skate fishery and 
the businesses that depend upon it, due to unexpected reductions in 
possession limits if TAL trigger thresholds are reached earlier than 
planned. This could also have the effect of limiting the availability 
of skate products on the market to the detriment not only of skate 
vessels and dealers, but also of the entire southern New England 
lobster fishery, which depends almost entirely on skates for use as 
bait. As noted above, the FY began on May 1, 2010, and the fishery is 
currently operating under the less restrictive pre-Amendment 3 
regulations, which include unlimited possession by the bait fishery and 
much higher possession limits by the wing fishery than allowed under 
this rule. However, all landings by the bait and wing fisheries that 
occur between May 1, 2010, and the effective date of this interim final 
rule will be counted against the respective fishery TALs once the TALs 
are implemented. If landings during this interim period exceed those 
that would be expected under the Amendment 3 measures, then it is 
likely that the TAL trigger thresholds may be reached earlier in the FY 
than planned or expected. This could result in disruptions not just to 
the skate fisheries, which would be subject to earlier than expected 
reductions in allowable landings, but also to the lobster fishery and 
the businesses that depend upon it, due to an unexpected reduction in 
the supply of lobster bait (which is the primary use of bait skates). 
The lobster fishery, in particular, depends upon a steady, consistent 
supply of bait skates year round. The measures in Amendment 3, with the 
bait skate TAL allocated across three quota periods, in combination 
with a 20,000-lb (9,072-kg) per trip possession limit, were carefully 
crafted in consultation with the fishing industry to minimize such 
disruptions. Delaying implementation of the final specifications even 
longer than has already occurred, in order to solicit additional public 
comments, would only increase the likelihood of early reductions in 
allowable landings and disruptions in the fishery that are contrary to 
the public's interest.
    NMFS could not have completed prior notice and comment rulemaking 
on the final specifications for FY 2010 and 2011 any earlier, because 
the Council's SSC did not meet until late March 2010 to consider the 
newly available information on the skate resources, and did not present 
a final recommendation on the revised ABC until the April 28, 2010, 
Council meeting. The Council, similarly, did not take a position on 
incorporating this new ABC into the Amendment 3 specifications process 
until April 28, 2010, nor did the Council evaluate the analyses 
completed by its PDT regarding the need to modify the skate wing 
fishery possession limit to be consistent with the revised 
specifications until this time. Immediately following the conclusion of 
the April 2010 Council meeting, and the decisions and recommendations 
by the Council and its SSC therein, NMFS undertook to revise this 
interim final rule implementing Amendment 3 to ensure it remains 
consistent with the best available scientific information and the 
intent of the Council.
    Although prior notice and comment have been waived for the final FY 
2010 and 2011 specifications implemented in this rule, NMFS is 
publishing this rule as an interim final rule and providing an 
opportunity for additional public comment to be submitted for 30 days 
following publication. NMFS will consider any comments submitted and 
may further revise the final specifications based on the comments 
received.

[[Page 34057]]

    NMFS, pursuant to section 604 of the Regulatory Flexibility Act 
(RFA), has prepared a FRFA in support of Amendment 3. The FRFA 
incorporates the IRFA, a summary of the significant issues raised by 
the public comments in response to the IRFA, NMFS's responses to those 
comments, and a summary of the analyses completed to support the 
action. A copy of the IRFA, RIR, and FEIS are available upon request 
(see ADDRESSES). A summary of the IRFA was published in the proposed 
rule for this action and is not repeated here. A description of why 
this action was considered, the objectives of, and the legal basis for 
this rule is contained in the preamble to the proposed rule and this 
interim final rule and is not repeated here.

A Summary of the Significant Issues Raised by the Public in Response to 
the IRFA, a Summary of the Agency's Assessment of Such Issues, and a 
Statement of Any Changes Made in the Proposed Rule as a Result of Such 
Comments

    Eleven public comments were submitted on the proposed rule. 
Although none of these comments were specific to the IRFA, several 
commenters noted the negative economic effects of the proposed 
possession limit for the skate wing fishery in Amendment 3. NMFS has 
responded to these comments in the Comments and Responses section of 
this preamble. Several changes were made to the final specifications 
for FY 2010 and 2011 implemented in this interim final rule that are 
pertinent to some of the comments received. As described earlier in 
this preamble, the final specifications implemented in this action have 
been revised to be consistent with the most recent scientific 
information represented by the new ABC recommendation from the 
Council's SSC. Thus, consistent with several of the comments on the 
proposed rule, the final specifications for FY 2010 and 2011 are as 
follows: (1) An ABC and ACL = 41,080 mt; (2) an ACT = 30,810 mt; (3) a 
Federal waters TAL = 13,848 mt; (4) wing and bait TALs = 9,209 mt and 
4,639 mt, respectively; and (5) a skate wing possession limit of 5,000 
lb (2,268 kg) per day (wing weight).

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

    All of the entities (fishing vessels) affected by this action are 
considered small entities under the Small Business Administration size 
standards for small fishing businesses ($4.0 million in annual gross 
sales). Therefore, there are no disproportionate effects on small 
versus large entities. Information on costs in the fishery is not 
readily available, and individual vessel profitability cannot be 
determined directly; therefore, expected changes in gross revenues were 
used as a proxy for profitability.
    The participants in the commercial skate fishery were defined using 
Northeast dealer reports to identify any vessel that reported having 
landed 1 lb (0.45 kg) or more of skates during calendar year 2007. 
These dealer reports identified 542 vessels that landed skates in 
states from Maine to North Carolina out of 2,685 vessels that held a 
Federal skate permit.

Description of Projected Reporting, Recordkeeping, and Other Compliance 
Requirements

    This action does not introduce any new reporting, recordkeeping, or 
other compliance requirements. This interim final rule does not 
duplicate, overlap, or conflict with other Federal rules.

Description of the Steps the Agency Has Taken to Minimize the 
Significant Economic Impact on Small Entities Consistent with the 
Stated Objectives of Applicable Statutes

    All of the alternatives considered in this action were developed by 
the Council based on input from members of the skate fishing industry 
that serve on the Council's industry advisory panel. Other than the no 
action alternative, of all the alternatives developed by the Council 
and considered in Amendment 3, the set of management measures 
implemented in this interim final rule represent those with the least 
economic impact on small entities. Based on the best available 
scientific information on the status of the skate complex, in order to 
be consistent with the requirements and intent of the ACL provisions of 
the reauthorized Magnuson-Stevens Act, as well as the National Standard 
1 guidelines, the overall catch (inclusive of landings and dead 
discards) of skates must be reduced up to 26 percent from recent catch 
levels. All of the alternatives considered in Amendment 3, with the 
exception of the no action alternative, were designed to achieve this 
reduction in catch, albeit in different ways. But, because all of the 
relevant alternatives are designed around a catch reduction, there are 
economic impacts associated with them that would be borne by the 
fishing industry. The only alternative considered in Amendment 3 that 
would not result in any direct economic impacts on the skate fishing 
industry was the no action alternative; however, this alternative could 
not be implemented because it is inconsistent with the requirements and 
intent of the Magnuson-Stevens Act.
    Alternatives 1A, 1B, 2, and 4 proposed time and/or area closures 
for bottom-tending fishing gears in the Gulf of Maine and Southern New 
England as a method to reduce skate catch in the NE multispecies, 
monkfish, and scallop fisheries primarily. These closures, however, 
would have restricted vessels from harvesting their more valuable 
target species. One reason the preferred alternative was selected (a 
combination of Alternatives 3B and 4) was that it did not include any 
time/area closures, and minimized the impact of the Skate FMP on other 
fisheries that only incidentally catch skates. The preferred 
alternative puts more focus on reducing only skate landings, and 
therefore skate revenues, rather than potentially reducing landings and 
revenues from higher valued species across a broader spectrum of New 
England fisheries, which would have had a direct economic impact on far 
more small entities than the preferred alternative. Because skates are 
a comparatively low value species, the preferred alternative focuses 
the anticipated economic impacts to the skate fishery, rather than on 
the NE multispecies, monkfish, or scallop fisheries.
    The preferred alternative also attempts to minimize economic 
impacts by using a target TAC approach rather than a hard TAC approach. 
Under the target TAC alternatives, landings of skates are never 
completely prohibited as the TAC is approached. Possession limits will 
be reduced, but as incidental catch of skates is unavoidable in many 
fisheries, those catches could be converted to landings rather than to 
discards. Under the hard TAC alternatives, when the TAC was harvested, 
all skate catch would have to be discarded.
    Dividing the skate bait fishery TAL into three seasons, as 
described in Alternative 4, in combination with the 20,000-lb (9,072-
kg) per trip bait skate possession limit, is anticipated to minimize 
economic impacts on the skate bait fishery. Due to the market dynamics 
in the skate bait fishery and the need to fill bait orders for the 
lobster fishery, a bait fishery closure too early in the year could 
result in economic hardship for skate bait fishermen as well as lobster 
fishermen. The three seasonal quotas are intended to help ensure that 
any skate bait fishery closures would be short term, and landings would 
be able to continue late in the FY, allowing for

[[Page 34058]]

a relatively constant supply of bait year round.
    This interim final rule also implements revised final 
specifications for FY 2010 and 2011, consistent with the best 
scientific information available, as described above. These final 
specifications are substantially higher than the specifications 
described in the proposed rule and IRFA, and are expected to impose 
less significant costs to the fishing industry in the form of overall 
landings limits (TALs) 47 percent higher than initially proposed. Also, 
based in part on comments received on the proposed rule and relevant to 
the IRFA, this action increases the per-trip possession limit for the 
skate wing fishery from 1,900 lb (862 kg) to 5,000 lb (2,268 kg) wing 
weight. This measure will also minimize the economic impacts associated 
with this action on the participants of the wing fishery.

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 actions a small entity is 
required to take to comply with a rule. As part of this rulemaking 
process, a small entity compliance guide was prepared. The guide will 
be sent to all holders of permits issued for the Northeast skate 
fishery. In addition, copies of this interim final rule and guide 
(i.e., permit holder letter) are available from the Regional 
Administrator, NMFS (see ADDRESSES).

List of Subjects in 50 CFR Part 648

    Fisheries, Fishing, Recordkeeping and reporting requirements.

    Dated: June 10, 2010.
Samuel D. Rauch III,
Deputy Assistant Administrator for Regulatory Programs, National Marine 
Fisheries Service.

0
For the reasons set out in the preamble, 50 CFR part 648 is amended as 
follows:

PART 648--FISHERIES OF THE NORTHEASTERN UNITED STATES

0
1. The authority citation for part 648 continues to read as follows:

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

0
2. In Sec.  648.13, paragraph (h) is revised to read as follows:


Sec.  648.13  Transfers at sea.

* * * * *
    (h) Skates. (1) Except as provided in paragraph (h)(2) of this 
section, all persons or vessels issued a Federal skate permit are 
prohibited from transferring, or attempting to transfer, at sea any 
skates to any vessel, and all persons or vessels not issued a Federal 
skate permit are prohibited from transferring, or attempting to 
transfer, at sea to any vessel any skates while in the EEZ, or skates 
taken in or from the EEZ portion of the Skate Management Unit.
    (2) Vessels and vessel owners or operators issued Federal skate 
permits underSec.  648.4(a)(14) may transfer at sea skates taken in or 
from the EEZ portion of the Skate Management Unit, provided:
    (i) The transferring vessel possesses on board a valid letter of 
authorization issued by the Regional Administrator as specified under 
Sec.  648.322(c); and
    (ii) The transferring vessel and vessel owner or operator comply 
with the requirements specified at Sec.  648.322(c).
* * * * *

0
3. In Sec.  648.14, paragraphs (v)(1)(ii), (v)(3)(i), and (v)(3)(ii)(A) 
are revised to read as follows:


Sec.  648.14  Prohibitions.

* * * * *
    (v) * * *
    (1) * * *
    (ii) Onboard a federally permitted lobster vessel (i.e., transfer 
at sea recipient) while in possession of only whole skates as bait that 
are less than the maximum size specified at Sec.  648.322(c).
* * * * *
    (3) * * *
    (i) Skate wings. Fail to comply with the conditions of the skate 
wing possession and landing limits specified at Sec.  648.322(b), 
unless holding a valid letter of authorization to fish for and land 
skates as bait at Sec.  648.322(c).
    (ii) * * *
    (A) Transfer at sea, or attempt to transfer at sea, to any vessel, 
any skates unless in compliance with the provisions of Sec. Sec.  
648.13(h) and 648.322(c).
* * * * *

0
4. In Sec.  648.80, paragraphs (b)(5)(i)(C)(1) and (2), and 
(b)(6)(i)(D)(1) and (2) are revised to read as follows:


Sec.  648.80  NE Multispecies regulated mesh areas and restrictions on 
gear and methods of fishing.

* * * * *
    (b) * * *
    (5) * * *
    (i) * * *
    (C) * * *
    (1) The vessel is called into the monkfish DAS program (Sec.  
648.92) and complies with the skate possession limit restrictions at 
Sec.  648.322;
    (2) The vessel has a valid letter of authorization on board to fish 
for skates as bait, and complies with the requirements specified at 
Sec.  648.322(c); or
* * * * *
    (6) * * *
    (i) * * *
    (D) * * *
    (1) The vessel is called into the monkfish DAS program (Sec.  
648.92) and complies with the skate possession limit restrictions at 
Sec.  648.322;
    (2) The vessel has a valid letter of authorization on board to fish 
for skates as bait, and complies with the requirements specified at 
Sec.  648.322(c); or
* * * * *

0
5. Section 648.320 is revised to read as follows:


Sec.  648.320  Skate FMP review and monitoring.

    (a) Annual review and specifications process. The Council, its 
Skate Plan Development Team (PDT), and its Skate Advisory Panel shall 
monitor the status of the fishery and the skate resources.
    (1) The Skate PDT shall meet at least annually to review the status 
of the species in the skate complex. At a minimum, this review shall 
include annual updates to survey indices, fishery landings and 
discards; a re-evaluation of stock status based on the updated survey 
indices and the FMP's overfishing definitions; and a determination of 
whether any of the accountability measures specified under Sec.  
648.323 were triggered. The review shall also include an analysis of 
changes to other FMPs (e.g., Northeast Multispecies, Monkfish, Atlantic 
Scallops, etc.) that may impact skate stocks, and describe the 
anticipated impacts of those changes on the skate fishery.
    (2) If new and/or additional information becomes available, the 
Skate PDT shall consider it during this annual review. Based on this 
review, the Skate PDT shall provide guidance to the Skate Committee and 
the Council regarding the need to adjust measures in the Skate FMP to 
better achieve the FMP's objectives. After considering guidance, the 
Council may submit to NMFS its recommendations for changes to 
management measures, as appropriate, through the specifications process 
described in this section, the framework process specified in

[[Page 34059]]

Sec.  648.321, or through an amendment to the FMP.
    (3) For overfished skate species, the Skate PDT and the Council 
shall monitor the trawl survey index as a proxy for stock biomass. As 
long as the 3-year average of the appropriate weight per tow increases 
above the average for the previous 3 years, it is assumed that the 
stock is rebuilding to target levels. If the 3-year average of the 
appropriate survey mean weight per tow declines below the average for 
the previous 3 years, then the Council shall take management action to 
ensure that stock rebuilding will achieve target levels.
    (4) Based on the annual review described above and/or the Stock 
Assessment and Fishery Evaluation (SAFE) Report described in paragraph 
(b) of this section, recommendations for acceptable biological catch 
(ABC) from the Scientific and Statistical Committee, and any other 
relevant information, the Skate PDT shall recommend to the Skate 
Committee and Council the following annual specifications for harvest 
of skates: An annual catch limit (ACL) for the skate complex set less 
than or equal to ABC; an annual catch target (ACT) for the skate 
complex set less than or equal to 75 percent of the ACL; and total 
allowable landings (TAL) necessary to meet the objectives of the FMP in 
each fishing year (May 1-April 30), specified for a period of up to 2 
fishing years.
    (5) Recommended measures. The Skate PDT shall also recommend 
management measures to the Skate Committee and Council to assure that 
the specifications are not exceeded. Recommended measures should 
include, but are not limited to:
    (i) Possession limits in each fishery;
    (ii) In-season possession limit triggers for the wing and/or bait 
fisheries; and
    (iii) Required adjustments to in-season possession limit trigger 
percentages or the ACL-ACT buffer, based on the accountability measures 
specified at Sec.  648.323.
    (6) Taking into account the annual review and/or SAFE Report 
described in paragraph (b) of this section, the advice of the 
Scientific and Statistical Committee, and any other relevant 
information, the Skate PDT may also recommend to the Skate Committee 
and Council changes to stock status determination criteria and 
associated thresholds based on the best scientific information 
available, including information from peer-reviewed stock assessments 
of the skate complex and its component species. These adjustments may 
be included in the Council's specifications for the skate fisheries.
    (7) Council recommendation. The Council shall review the 
recommendations of the Skate PDT, Skate Committee, and Scientific and 
Statistical Committee, any public comment received thereon, and any 
other relevant information, and make a recommendation to the Regional 
Administrator on appropriate specifications and any measures necessary 
to assure that the specifications will not be exceeded. The Council's 
recommendation must include supporting documentation, as appropriate, 
concerning the environmental, economic, and social impacts of the 
recommendations. The Regional Administrator shall consider the 
recommendations and publish a rule in the Federal Register proposing 
specifications and associated measures, consistent with the 
Administrative Procedure Act. The Regional Administrator may propose 
specifications different than those recommended by the Council. If the 
specifications published in the Federal Register differ from those 
recommended by the Council, the reasons for any differences must be 
clearly stated and the revised specifications must satisfy the criteria 
set forth in this section, the FMP, and other applicable laws. If the 
final specifications are not published in the Federal Register for the 
start of the fishing year, the previous year's specifications shall 
remain in effect until superseded by the final rule implementing the 
current year's specifications, to ensure that there is no lapse in 
regulations while new specifications are completed.
    (b) Biennial SAFE Report--(1) The Skate PDT shall prepare a 
biennial Stock Assessment and Fishery Evaluation (SAFE) Report for the 
NE skate complex. The SAFE Report shall be the primary vehicle for the 
presentation of all updated biological and socio-economic information 
regarding the NE skate complex and its associated fisheries. The SAFE 
Report shall provide source data for any adjustments to the management 
measures that may be needed to continue to meet the goals and 
objectives of the FMP.
    (2) In any year in which a SAFE Report is not completed by the 
Skate PDT, the annual review process described in paragraph (a) of this 
section shall be used to recommend any necessary adjustments to 
specifications and/or management measures in the FMP.

0
6. Section 648.321 is revised to read as follows:


Sec.  648.321  Framework adjustment process.

    (a) Adjustment process. To implement a framework adjustment for the 
Skate FMP, the Council shall develop and analyze proposed actions over 
the span of at least two Council meetings (the initial meeting agenda 
must include notification of the impending proposal for a framework 
adjustment) and provide advance public notice of the availability of 
both the proposals and the analyses. Opportunity to provide written and 
oral comments shall be provided throughout the process before the 
Council submits its recommendations to the Regional Administrator.
    (1) Council review and analyses. In response to the annual review, 
or at any other time, the Council may initiate action to add or adjust 
management measures if it finds that action is necessary to meet or be 
consistent with the goals and objectives of the Skate FMP. After a 
framework action has been initiated, the Council shall develop and 
analyze appropriate management actions within the scope of measures 
specified in paragraph (b) of this section. The Council shall publish 
notice of its intent to take action and provide the public with any 
relevant analyses and opportunity to comment on any possible actions. 
Documentation and analyses for the framework adjustment shall be 
available at least 1 week before the final meeting.
    (2) Council recommendation. After developing management actions and 
receiving public testimony, the Council may make a recommendation to 
the Regional Administrator. The Council's recommendation shall include 
supporting rationale, an analysis of impacts required under paragraph 
(a)(1) of this section, and a recommendation to the Regional 
Administrator on whether to issue the management measures as a final 
rule. If the Council recommends that the framework measures should be 
issued directly as a final rule, without opportunity for public notice 
and comment, the Council shall consider at least the following factors 
and provide support and analysis for each factor considered:
    (i) Whether the availability of data on which the recommended 
management measures are based allows for adequate time to publish a 
proposed rule, and whether regulations have to be in place for an 
entire harvest/fishing season;
    (ii) Whether there has been adequate notice and opportunity for 
participation by the public and members of the affected industry in the 
development of the Council's recommended management measures;
    (iii) Whether there is an immediate need to protect the resource or 
to impose management measures to resolve gear conflicts; and

[[Page 34060]]

    (iv) Whether there will be a continuing evaluation of management 
measures adopted following their implementation as a final rule.
    (3) The Regional Administrator may publish the recommended 
framework measures in the Federal Register. If the Council's 
recommendation is first published as a proposed rule and the Regional 
Administrator concurs with the Council's recommendation after receiving 
additional public comment, the measures shall then be published as a 
final rule in the Federal Register.
    (4) If the Regional Administrator approves the Council's 
recommendations, the Secretary may, for good cause found under the 
standard of the Administrative Procedure Act, waive the requirement for 
a proposed rule and opportunity for public comment in the Federal 
Register. The Secretary, in so doing, shall publish only the final 
rule. Submission of recommendations does not preclude the Secretary 
from deciding to provide additional opportunity for prior notice and 
comment in the Federal Register.
    (5) The Regional Administrator may approve, disapprove, or 
partially approve the Council's recommendation. If the Regional 
Administrator does not approve the Council's specific recommendation, 
the Regional Administrator must notify the Council in writing of the 
reasons for the action prior to the first Council meeting following 
publication of such decision.
    (b) Possible framework adjustment measures. Measures that may be 
changed or implemented through framework action, provided that any 
corresponding management adjustments can also be implemented through a 
framework adjustment, include:
    (1) Skate permitting and reporting;
    (2) Skate overfishing definitions and related targets and 
thresholds;
    (3) Prohibitions on possession and/or landing of individual skate 
species;
    (4) Skate possession limits;
    (5) Skate closed areas (and consideration of exempted gears and 
fisheries);
    (6) Seasonal skate fishery restrictions and specifications;
    (7) Target TACs for individual skate species;
    (8) Hard TACs/quotas for skates, including species-specific quotas, 
fishery quotas, and/or quotas for non-directed fisheries;
    (9) Establishment of a mechanism for TAC set-asides to conduct 
scientific research, or for other reasons;
    (10) Onboard observer requirements;
    (11) Gear modifications, requirements, restrictions, and/or 
prohibitions;
    (12) Minimum and/or maximum sizes for skates;
    (13) Adjustments to exemption area requirements, area coordinates, 
and/or management lines established by the FMP;
    (14) Measures to address protected species issues, if necessary;
    (15) Description and identification of EFH;
    (16) Description and identification of habitat areas of particular 
concern;
    (17) Measures to protect EFH;
     (18) OY and/or MSY specifications;
    (19) Changes to the accountability measures described at Sec.  
648.323;
    (20) Changes to TAL allocation proportions to the skate wing and 
bait fisheries;
    (21) Changes to seasonal quotas in the skate bait or wing 
fisheries;
    (22) Reduction of the baseline 25-percent ACL-ACT buffer to less 
than 25 percent; and
    (23) Changes to catch monitoring procedures.
    (c) Emergency action. Nothing in this section is meant to derogate 
from the authority of the Secretary to take emergency action under 
section 305(c) of the Magnuson-Stevens Act.

0
7. Section 648.322 is revised to read as follows:


Sec.  648.322  Skate allocation, possession, and landing provisions.

    (a) Allocation of TAL. (1) A total of 66.5 percent of the annual 
skate complex TAL shall be allocated to the skate wing fishery. All 
skate products that are landed in wing form, for the skate wing market, 
or classified by Federal dealers as food as required under Sec.  
648.7(a)(1)(i), shall count against the skate wing fishery TAL.
    (2) A total of 33.5 percent of the annual TAL shall be allocated to 
the skate bait fishery. All skate products that are landed for the 
skate bait market, or classified by Federal dealers as bait as required 
under Sec.  648.7(a)(1)(i), shall count against the skate bait fishery 
TAL. The annual skate bait fishery TAL shall be allocated in three 
seasonal quota periods as follows:
    (i) Season 1-May 1 through July 31, 30.8 percent of the annual 
skate bait fishery TAL shall be allocated;
    (ii) Season 2-August 1 through October 31, 37.1 percent of the 
annual skate bait fishery TAL shall be allocated; and
    (iii) Season 3-November 1 through April 30, the remainder of the 
annual skate bait fishery TAL not landed in Seasons 1 or 2 shall be 
allocated.
    (b) Skate wing possession and landing limits. A vessel or operator 
of a vessel that has been issued a valid Federal skate permit under 
this part, provided the vessel fishes under an Atlantic sea scallop, NE 
multispecies, or monkfish DAS as specified at Sec. Sec.  648.53, 
648.82, and 648.92, respectively, or is also a limited access 
multispecies vessel participating in an approved sector described under 
Sec.  648.87, unless otherwise exempted under Sec.  648.80 or paragraph 
(c) of this section, may fish for, possess, and/or land up to the 
allowable trip limits specified as follows:
    (1) Up to 5,000 lb (2,268 kg) of skate wings (11,350 lb (5,148 kg) 
whole weight) per trip, except for a vessel fishing on a declared NE 
multispecies Category B DAS described under Sec.  648.85(b), which is 
limited to no more than 220 lb (100 kg) of skate wings (500 lb (227 kg) 
whole weight) per trip (or any prorated combination of skate wings and 
whole skates based on the conversion factor for wing weight to whole 
weight of 2.27- for example, 100 lb (45.4 kg) of skate wings X 2.27 = 
227 lb (103.1 kg) of whole skates).
    (2) In-season adjustment of skate wing possession limits. When the 
Regional Administrator projects that 80 percent of the annual skate 
wing fishery TAL has been landed, the Regional Administrator shall, 
through a notice in the Federal Register consistent with the 
Administrative Procedure Act, reduce the skate wing trip limit to 500 
lb (227 kg) of skate wings (1,135 lb (515 kg) whole weight, or any 
prorated combination of skate wings and whole skates based on the 
conversion factor for wing weight to whole weight of 2.27) for the 
remainder of the fishing year, unless such a reduction would be 
expected to prevent attainment of the annual TAL.
    (3) Incidental possession limit for vessels not under a DAS. A 
vessel issued a Federal skate permit that is not fishing under an 
Atlantic sea scallop, NE multispecies, or monkfish DAS as specified at 
Sec. Sec.  648.53, 648.82, and 648.92, respectively, and is not a 
limited access multispecies vessel participating in an approved sector 
described under Sec.  648.87, may retain up to 500 lb (227 kg) of skate 
wings or 1,135 lb (515 kg) of whole skate, or any prorated combination 
of skate wings and whole skates based on the conversion factor for wing 
weight to whole weight of 2.27), per trip.
    (c) Bait Letter of Authorization (LOA). A skate vessel owner or 
operator under this part may request and receive from the Regional 
Administrator an exemption from the skate wing possession limit 
restrictions for a minimum of 7 consecutive days, provided that when 
the vessel is fishing pursuant to the terms of authorization at least 
the following requirements and conditions are met:

[[Page 34061]]

    (1) The vessel owner or operator obtains and retains onboard the 
vessel a valid LOA. LOAs are available upon request from the Regional 
Administrator.
    (2) The vessel owner or operator possesses and/or lands only whole 
skates less than 23 inches (58.42 cm) total length.
    (3) The vessel owner or operator fishes for, possesses, or lands 
skates only for use as bait.
    (4) The vessel owner or operator possesses or lands no more than 
20,000 lb (9,072 kg) of only whole skates less than 23 inches (58.42 
cm) total length, and does not possess or land any skate wings or whole 
skates greater than 23 inches (58.42 cm) total length.
    (5) Vessels that choose to possess or land skate wings during the 
participation period of this letter of authorization must comply with 
possession limit restrictions under paragraph (b) of this section for 
all skates or skate parts on board. Vessels possessing skate wings in 
compliance with the possession limit restrictions under paragraph (b) 
may fish for, possess, or land skates for uses other than bait.
    (6) The vessel owner or operator complies with the transfer at sea 
requirements at Sec.  648.13(h).
    (d) In-season adjustment of skate bait possession limits. When the 
Regional Administrator projects that 90 percent of the skate bait 
fishery seasonal quota has been landed in Seasons 1 or 2, or 90 percent 
of the annual skate bait fishery TAL has been landed, the Regional 
Administrator shall, through a notice in the Federal Register 
consistent with the Administrative Procedure Act, reduce the skate bait 
trip limit to the whole weight equivalent of the skate wing trip limit 
specified under paragraph (b) of this section for the remainder of the 
quota period, unless such a reduction would be expected to prevent 
attainment of the seasonal quota or annual TAL.
    (e) Prohibitions on possession of skates. A vessel fishing in the 
EEZ portion of the Skate Management Unit may not:
    (1) Retain, possess, or land barndoor or thorny skates taken in or 
from the EEZ portion of the Skate Management Unit.
    (2) Retain, possess, or land smooth skates taken in or from the GOM 
RMA described at Sec.  648.80(a)(1)(i).

0
8. Section 648.323 is added to read as follows:


Sec.  648.323  Accountability measures.

    (a) TAL overages. If the skate wing fishery TAL or skate bait 
fishery TAL is determined to have been exceeded by more than 5 percent 
in any given year based upon, but not limited to, available landings 
information, the Regional Administrator shall reduce the in-season 
possession limit trigger for that fishery, as specified at Sec.  
648.322(b) and (d), in the next fishing year by 1 percent for each 1 
percent of TAL overage, consistent with the Administrative Procedure 
Act.
    (b) ACL overages-(1) If the ACL is determined to have been exceeded 
in any given year, based upon, but not limited to, available landings 
and discard information, the percent buffer between ACL and ACT, 
initially specified at 25 percent, shall be increased by 1 percent for 
each 1-percent ACL overage in the second fishing year following the 
fishing year in which the ACL overage occurred, through either the 
specifications or framework adjustment process described under 
Sec. Sec.  648.320 and 648.321.
    (2) If the Council fails to initiate action to correct an ACL 
overage through the specifications or framework adjustment process, 
consistent with paragraph (b)(1) of this section, the Regional 
Administrator shall implement the required adjustment, as described 
under paragraph (b)(1) of this section, consistent with the 
Administrative Procedure Act.
[FR Doc. 2010-14555 Filed 6-15-10; 8:45 am]
BILLING CODE 3510-22-S