[Federal Register Volume 76, Number 83 (Friday, April 29, 2011)]
[Proposed Rules]
[Pages 23940-23962]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2011-10334]


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DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

50 CFR Part 648

[Docket No. 110118038-1236-01]
RIN 0648-BA72


Fisheries of the Northeastern United States; Atlantic Sea Scallop 
Fishery; Framework Adjustment 22

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

ACTION: Proposed rule; request for comments.

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SUMMARY: NMFS proposes regulations to implement Framework Adjustment 22 
(Framework 22) to the Atlantic Sea Scallop Fishery Management Plan 
(FMP), which was developed and adopted by the New England Fishery 
Management Council (Council) and submitted to NMFS for approval. The 
specifications proposed in Framework 22 are based on, and being 
proposed in conjunction with, the management measures proposed in 
Amendment 15 to the FMP (Amendment 15) that establish the process for 
setting annual catch limits (ACLs) and accountability measures (AMs) to 
bring the FMP into compliance with the requirements of the re-
authorized Magnuson-Stevens Fishery Conservation and Management Act 
(Magnuson-Stevens Act). The purpose of Framework 22 is to specify the 
following scallop management measures for the 2011 through 2012 fishing 
years (FYs): The overfishing limit (OFL), acceptable biological catches 
(ABC), ACLs, and annual catch targets (ACTs) for both the limited 
access (LA) and limited access general category (LAGC) fleets; open 
area days-at-sea (DAS) and Sea Scallop Access Area (access area) trip 
allocations; DAS adjustments if an access area yellowtail flounder 
(YTF) total allowable catch (TAC) is caught; LAGC-specific allocations, 
including access area trip allocations for vessels with individual 
fishing quotas (IFQs), the Northern Gulf of Maine (NGOM) TAC, and the 
incidental target TAC; management measures to minimize impacts of 
incidental take of sea turtles as required by the March 14, 2008, 
Atlantic Sea Scallop Biological Opinion (Biological Opinion); and the 
elimination of the default Georges Bank (GB) access area rotation 
schedule.
    Framework 22 also proposes, consistent with proposed measures in 
Amendment 15, precautionary default management measures for FY 2013 to 
be applied if a new biennial framework adjustment is not implemented by 
the start of FY 2013.

DATES: Comments must be received by 5 p.m., local time, on May 31, 
2011.

ADDRESSES: An environmental assessment (EA) was prepared for Framework 
22 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 Framework 22, the EA, and the 
Initial Regulatory Flexibility Analysis (IRFA), are available upon 
request from Paul J. Howard, Executive Director, New England Fishery 
Management Council, 50 Water Street, Newburyport, MA 01950.

[[Page 23941]]

    You may submit comments, identified by 0648-BA72, 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: Emily Gilbert.
     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 Scallop 
Framework 22 Proposed Rule.''
    Instructions: All comments received are a 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: Emily Gilbert, Fishery Policy Analyst, 
978-281-9244; fax 978-281-9135.

SUPPLEMENTARY INFORMATION: 

Background

    The Council adopted Framework 22 on November 17, 2010, and 
submitted it to NMFS on March 23, 2011, for review and approval. 
Framework 22 was developed and adopted by the Council, partially in 
conjunction with and based on Amendment 15 proposed measures, in order 
to comply with requirements of the Magnuson-Stevens Act enacted in 2007 
to meet the FMP's objectives to prevent overfishing and improve yield-
per-recruit from the fishery. Consequently, the authority to implement 
Framework 22, in part, is based on approval by NMFS of Amendment 15. 
Framework 22 specifies measures for FYs 2011 through 2012, but includes 
FY 2013 measures that will go into place as a default should the 
biennial framework required by proposed Amendment 15 to specify FY 2013 
and FY 2014 measures be delayed beyond the start of FY 2013. Framework 
22, if approved, will be implemented after the start of FY 2011. Some 
of the measures proposed by this action are not explicitly proposed in 
Framework 22, but are being proposed by NMFS under the authority of 
Section 305(d) of the Magnuson-Stevens Act, which provides that the 
Secretary may promulgate regulations necessary to ensure that 
amendments to an FMP are carried out in accordance with the FMP and the 
MSA. These measures, which are identified and described below, are 
necessary to address unintended consequences of the projected late 
implementation of this action, as well as to clarify implied measures 
which may not have been explicitly included in Framework 22. The 
Council has reviewed the Framework 22 proposed rule regulations as 
drafted by NMFS and deemed them to be necessary and appropriate as 
specified in section 303(c) of the Magnuson-Stevens Act.

Default Management Measures for FY 2013

    The specifications proposed in this action also include default 
measures for FY 2013, because Amendment 15 proposes that framework 
adjustments setting biennial scallop specifications should also include 
an additional year of allocations to be used as default measures. Final 
Council action on scallop frameworks has routinely occurred at the 
November Council meeting, which has resulted in management measures 
being approved and implemented by NMFS after the March 1 start of the 
first FY for which the measures apply. Under the current regulations, 
the prior year's management measures roll over to the subsequent FY 
until they are superseded by a subsequent framework adjustment. 
Amendment 15 proposes instead to develop specific third-year default 
measures to account for any possible delays in the implementation of 
the subsequent biennial framework adjustment. Therefore, this action 
proposes default FY 2013 measures that would be implemented on March 1, 
2013, if the next biennial adjustment is delayed beyond the start of FY 
2013. The proposed FY 2013 measures will be replaced by a subsequent 
framework adjustment that would set FYs 2013 through 2015 measures 
based on updated scallop biomass projections. The proposed FY 2013 DAS 
allocations would be set at a precautionary level (i.e., 75 percent of 
what current biomass levels project would be the DAS allocation for the 
entire FY). In addition, this action proposes the following default 
management measures for FY 2013: Access area trip allocations; DAS 
adjustments if an access area YTF TAC is caught; LAGC access area trip 
allocations; and management measures to minimize impacts of incidental 
take of sea turtles that are based on the proposed FY 2013 allocations. 
These management measures are described in greater detail throughout 
the preamble of this action.

Specification of Scallop OFL, ABC, ACL, and ACTs for FYs 2011 and 2012 
and defaults specifications for FY 2013

    These specifications are being proposed in accordance with measures 
and criteria set out in proposed Amendment 15. The OFL is set based on 
a fishing mortality rate (F) of 0.38, equivalent to the F threshold 
updated through the most recent scallop stock assessment. The ABC and 
equivalent total ACL for each FY are based on an F of 0.32, the F 
associated with a 25-percent probability of exceeding the OFL. The 
Council's Scientific and Statistical Committee (SSC) recommended ABCs 
for the FY 2011 and 2012 scallop fisheries of 60.1 M lb (27,269 mt) and 
63.8 M lb (28,961 mt), respectively, after accounting for discards and 
incidental mortality. The Scallop Plan Development Team (PDT) estimated 
the FY 2013 ABC of 28,700 mt using the same approach that was reviewed 
and approved by the SSC to set the ABC for FYs 2011 and 2012. The 
decision to include third-year default measures occurred after the SSC 
made ABC recommendations for this action. The SSC will recommend an ABC 
in conjunction with the next biennial framework adjustment for FY 2013 
and FY 2014, as well as a default ABC for FY 2015.
    Table 1 outlines the various scallop fishery catch limits that are 
derived from these ABC values. After deducting the incidental target 
TAC and the research and observer set-asides, the remaining ACL 
available to the fishery is proportioned out according to Amendment 11 
fleet allocations, with 94.5 percent allocated to the LA scallop fleet, 
5 percent allocated to the LAGC IFQ fleet, and the remaining 0.5 
percent allocated to LA scallop vessels that also have LAGC IFQ 
permits. These separate ACLs and their corresponding ACTs are referred 
to as sub-ACLs and sub-ACTs, respectively, throughout this action. 
Amendment 15 proposes that no buffers to account for management 
uncertainty are necessary in setting the LAGC sub-ACLs, meaning that 
the LAGC sub-ACL would equal the LAGC sub-ACT. As a result, the LAGC 
sub-ACL values in Table 1, based on an F of 0.32, represent the amount 
of catch from which IFQ percent shares will be applied to calculate 
each vessel's IFQ for a given FY. For the LA fleet, Amendment 15 
proposes a management uncertainty buffer based on the F associated with 
a 75-percent probability of remaining

[[Page 23942]]

below the F associated with ABC/ACL, which results in an F of 0.28.

        Table 1--Scallop Catch Limits for FYs 2011 Through 2013 for Both the LA and LAGC IFQ Fleets (mt)
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                                                                       2011            2012            2013
----------------------------------------------------------------------------------------------------------------
OFL.............................................................          32,387          34,382          34,081
ABC/ACL.........................................................          27,269          28,961          28,700
Incidental TAC..................................................              23              23              23
Research Set-Aside (RSA)........................................             567             567             567
Observer Set-aside (1 percent of ABC/ACL).......................             273             290             287
LA sub-ACL(94.5 percent of total ACL, after deducting set-asides          24,954          26,537          26,293
 and incidental catch)..........................................
LA sub-ACT (adjusted for management uncertainty)................          21,431          23,546          19,688
LAGC IFQ sub-ACL (5.0 percent of total ACL, after deducting set-           1,320           1,404           1,391
 asides and incidental catch)...................................
LAGC IFQ sub-ACL for vessels with LA scallop permits (0.5                    132             140             139
 percent of total ACL, after deducting set-asides and incidental
 catch).........................................................
----------------------------------------------------------------------------------------------------------------

    These allocations do not account for any adjustments that would be 
made year-to-year if the AMs proposed in Amendment 15 are triggered due 
to annual landings exceeding the ACL.

Open Area DAS Allocations

    This action would implement vessel-specific DAS allocations for 
each of the three limited access scallop DAS permit categories (i.e., 
full-time, part-time, and occasional) for FYs 2011 through 2013 (Table 
2). While the Council specified full-time DAS allocations and provided 
the formula for calculating DAS allocations for part-time and 
occasional vessels based on Amendment 4 to the Scallop FMP (Amendment 
4), Framework 22 did not explicitly state the specific DAS allocations 
for part-time and occasional vessels. Amendment 4 sets the DAS 
allocations for part-time and occasional vessel at 40 percent and 8.33 
percent, respectively, of the DAS allocations assigned to full-time 
vessels. NMFS has applied these percentages to the full-time vessel DAS 
allocations for FYs 2011 through FY 2013 to clearly specify the part-
time and occasional DAS for those FYs in Table 2. FY 2013 DAS 
allocations are precautionary, and are set at 75 percent of what 
current biomass projections indicate could be allocated to each LA 
scallop vessel for the entire FY so as to avoid over-allocating DAS to 
the fleet in the event that the framework that would set those 
allocations, if delayed past the start of FY 2013, estimates that DAS 
should be less than currently projected.

                      Table 2--Scallop Open Area DAS Allocations for FYs 2011 Through 2013
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                                        Scallop open area DAS allocations
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                         Permit category                              FY 2011         FY 2012         FY 2013
----------------------------------------------------------------------------------------------------------------
Full-Time.......................................................              32              34              26
Part-Time.......................................................              13              14              11
Occasional......................................................               3               3               3
----------------------------------------------------------------------------------------------------------------

    Because Framework 22 would not go into effect until after the March 
1 start of FY 2011, the current DAS allocations, which are higher than 
those proposed in Framework 22, will roll over until Framework 22 is 
implemented. It is possible that scallop vessels could exceed their 
Framework 22 DAS allocations during the interim period between March 1, 
2011, and the implementation of the proposed DAS allocations in 
Framework 22. Therefore, Framework 22 specifies that the number of LA 
open area DAS used in FY 2011 by a vessel (excluding carryover DAS) 
that exceed the final FY 2011 open area DAS allocation for that vessel 
would be deducted from the vessel's FY 2012 open area DAS allocation.

Open Area DAS Adjustment if Access Area YTF TAC Is Attained

    Under the Northeast Multispecies FMP, 10 percent of the GB YTF TAC 
is allocated to scallop vessels fishing in the Closed Area 1 (CAI) and 
Closed Area II (CAII) Access Areas, combined; and 10 percent of the 
Southern New England/Mid-Atlantic (SNE/MA) YTF TAC is allocated to 
scallop vessels fishing in the Nantucket Lightship (NLS) Access Area. 
Under the Northeast Multispecies regulations, if the GB or SNE/MA YTF 
TAC is caught, CAI and CAII, and/or NLS would close to further scallop 
fishing for the remainder of the FY. If a vessel has unutilized trip(s) 
after an access area is closed due to reaching the YTF TAC, it would be 
allocated additional open area DAS at a reduced rate. Unused access 
area trip(s) would be converted to open area DAS so that scallop 
fishing mortality that would have resulted from the access area trip(s) 
would be equivalent to the scallop fishing mortality resulting from the 
open area DAS allocation. The conversion used to allocate additional 
DAS from a YTF access area closure is based on Framework 22's proposed 
FYs 2011-2013 LA scallop possession limits for access area trips of 
18,000 lb (8,165 kg) for full-time vessels, 14,400 lb (6,532 kg) for 
part-time vessels, and 6,000 lb (2,723 kg) for occasional vessels, and 
are as follows: For a given FY, the pounds remaining from an access 
area trip(s) (i.e., from a fully unused trip(s) and/or unused 
compensation trip(s)) would first be multiplied by the average meat 
count (i.e., number of shucked scallop abductor muscles per lb) from 
that area and then subsequently divided by both the open area average 
meat count and by the open area landings per unit effort (LPUE), 
resulting in a DAS allocation comparable to the unused access area 
pounds. For example, in FY 2011, based on a catch limit of 18,000 lb, 
the average meat count for scallops in CAI is estimated to be 10.6 
meats/lb, assuming that 190,800 scallops are removed per full-time trip 
(18,000 lb (8,165 kg) x 10.6

[[Page 23943]]

meats/lb = 190,800 meats (equivalent to 1 scallop per meat)). The open 
area meat count and LPUE for open areas in FY 2011 are estimated to be 
18.4 meats/lb and 2,441 lb/DAS, respectively. The estimated number of 
open area DAS a full-time vessel would use to catch the same number of 
scallops as it would in CAI with an 18,000-lb possession limit would be 
4.3 DAS (190,800 scallops/(18.4 meats/lb x 2,441 lb/DAS = 4.3 DAS). 
Therefore, if a full-time vessel had an unused CAI trip at the time of 
a CAI YTF TAC closure, the vessel would be allocated 4.3 DAS in open 
areas. Table 3 outlines the DAS/trip conversion for unused full-time, 
part-time, and occasional vessels access area trips. This trip/DAS 
conversion would apply to all full-time vessels, but only to occasional 
or part-time vessels that have no other available access areas in which 
to take their access area trip(s). Although Framework 22 did not 
explicitly outline the DAS conversion factors for part-time and 
occasional vessels, NMFS has listed those values in Table 3 using the 
possession limits, LPUE estimates, and meat weight estimates provided 
in the Framework 22 document. Additionally, Framework 22 did not 
explicitly provide how the DAS/trip conversion would be applied to 
compensation trips that could no longer be used in the access area to 
which they apply. NMFS clarifies in this proposed rule that if a vessel 
has an unused compensation trip in an access area that closes due to 
YTF, the same calculation outlined above would apply, resulting in a 
proportional DAS increase to that of a fully unused trip allocation. 
For example, in FY 2011, if a full-time vessel had an unused 9,000-lb 
(4,082-kg) CAI compensation trip (i.e., half of the full-time vessel's 
18,000-lb (8,165-kg) possession limit) at the time of a CAI YTF TAC 
closure, the vessel would be allocated 2.15 DAS (i.e., half of the 4.3 
DAS that would be allocated for a full CAI trip).

 Table 3--Scallop Access Area Trip/DAS Conversions if CAI, CAII, and/or NLS Close Due to Full Harvest of GB and/
                                                or SNE/MA YTF TAC
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                                  Access area trip conversion to open area DAS
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                 Permit category                        FY              CAI            CAII             NLS
----------------------------------------------------------------------------------------------------------------
Full-Time.......................................            2011             4.3             5.7
                                                            2012             4.4             5.4             4.3
                                                            2013  ..............             5.4             4.9
Part-Time.......................................            2011             3.4             4.5
                                                            2012             3.6             4.3             3.4
                                                            2013  ..............             4.3             3.9
Occasional......................................            2011             1.4             1.9
                                                            2012             1.5             1.8             1.4
                                                            2013  ..............             1.8             1.6
----------------------------------------------------------------------------------------------------------------

LA Trip Allocations, the Random Allocation Process, and Possession 
Limits for Scallop Access Areas

    This action proposes a new access area allocation scheme for full-
time vessels fishing in scallop access areas. In terms of allocations 
to the fleet, full-time LA scallop vessels would receive four access 
area trips in FYs 2011 through 2013. In order to avoid allocating trips 
into access areas with scallop biomass levels not large enough to 
support a full trip by all 313 LA full-time vessels, Framework 22 
proposes to allocate ``split-fleet'' trips into certain access areas. 
Framework 22 would randomly allocate half of the full-time vessels a 
full trip into a specific area(s), and half of the full-time vessels a 
full trip into a different area(s). Ultimately, all vessels would 
receive the same number of total access area trips, although the 
specific areas to which they have access may differ (Table 4). The 
Framework 22 document refers to this process as a ``lottery,'' but NMFS 
refers to this allocation scheme as the ``random allocation process.''
    The Council specified that the full-time vessels' access area trip 
allocations should be set as randomly as possible. Therefore, the 
Scallop PDT developed an allocation system where permit numbers are 
selected based on a simple random number generator in Microsoft Excel 
and the vessels associated with a permit number would be allocated the 
access area(s) where it can fish. For FYs 2011 and 2013, this process 
is relatively simple because there are only two access areas in which 
to split trip allocations in each FY: Half of the full-time vessels 
would be randomly allocated a trip into one area, resulting in the rest 
of the vessels being allocated a trip into the other area. The random 
allocation process is more complicated if there are more than two 
applicable access areas. Section 2.4.2 of the Framework 22 document 
includes a full description of the random allocation process in cases 
involving more than two access area trips. In FY 2012, because full-
time vessels would receive two access area trip allocations randomly 
from a selection of four access areas, the random allocation process 
would be modified by computing a number of random iterations to allow 
for vessels to receive two trips from two distinct access areas (rather 
than only a single iteration, as in FYs 2011 and 2013), while 
distributing fishing effort equally across the four access areas. In 
order to facilitate trading trips between vessels, the proposed 
allocations for full-time vessels for FY 2011 have already been 
identified, and can be found in Section 2.4.2 of the Framework 22 
document (See ADDRESSES), as well as NMFS's Web site. These preliminary 
allocations, subject to NMFS approval of Framework 22 and permit 
renewal requirements, would be updated with any changes in vessel 
ownership and/or vessel replacements. The split-fleet trip assignments 
would also be made publically available through NMFS's Web site and in 
permit holder letters prior to the start of FYs 2012 and 2013. The 
decision to use a random allocation process to allocate access area 
trips to full-time vessels will be re-evaluated in a future framework 
adjustment.
    In FY 2011, all full-time scallop vessels would be allocated one 
trip in the Delmarva Access Area (Delmarva), one trip into the Hudson 
Canyon Access Area (HC), and one trip into CAI (Table 4). In addition, 
157 full-time vessels would be allocated one trip into CAII, and the 
other 156 full-time vessels would be allocated an additional trip into 
CAI, for a total of four access area trips per full-time vessel. A 
part-time scallop vessel would be allocated two trips, which could be 
taken in one of the following combinations: Two trips in CAI; one trip 
in the CAI and one trip in

[[Page 23944]]

CAII; one trip in CAI and one trip in HC; one trip in CAI and one trip 
in Delmarva; one trip in CAII and one trip in HC; one trip in CAII and 
one trip in Delmarva; or one trip in HC and one trip in Delmarva. An 
occasional vessel would be allocated one trip, which could be taken in 
any one open access area.
    Because the proposed measures would be implemented after March 1, 
2011, and the current regulations that would roll over into FY 2011 are 
inconsistent with the proposed specifications, it is possible that 
during the interim between the start of FY 2011 and the implementation 
of the proposed measures a scallop vessel would take a trip in an area 
not open under the proposed measures. For example, under the current 
roll-over provisions, at the start of FY 2011, the Elephant Trunk 
Access Area (ETAA), is an open access area, and full-time vessels have 
received the same allocation as they received in FY 2010 (i.e., two 
ETAA trips, one Delmarva trip, and one NLS trip). However, Framework 22 
proposes to close NLS in FY 2011 and change the ETAA into an open area 
to be fished under DAS allocations. Framework 22 has accounted for the 
ETAA changing from an access area to an open area by including the 
calculated biomass in this and other areas in the proposed overall open 
area DAS allocations for FY 2011.
    If during FY 2011 a vessel fishes on an ETAA trip allocated during 
the interim period between the start of FY 2011 and the implementation 
of Framework 22, under this rule's framework any pounds landed from a 
declared ETAA trip would be converted to the equivalent DAS and 
deducted from that vessel's open area DAS allocations in FY 2012. The 
conversion would be calculated as follows: The pounds a vessel lands 
from the ETAA would first be multiplied by the estimated ETAA average 
meat count (18.4 meats/lb) and then divided by the product of the 
estimated open area average meat count (also 18.4 meats/lb) multiplied 
by the estimated open area LPUE for FY 2011 (2,441 lb/DAS). For 
example, if a full-time vessel lands the full 18,000-lb (8,165-kg) 
possession limit on an ETAA trip in FY 2011, that vessel would incur a 
DAS deduction of 7.4 DAS in FY 2012 ((18,000 lb x 18.4 meats/lb)/(18.4 
meats/lb x 2,441 lb/DAS)), to account for those landings, resulting in 
a total FY 2012 DAS allocation of 26.8 DAS (i.e., 34 DAS minus 7.4 
DAS). Part-time and occasional vessels would receive deductions of 5.9 
DAS and 2.5 DAS, respectively, for landing their full trip possession 
limits from the ETAA in FY 2011. If a vessel only lands a portion of 
its full possession limit, the applicable DAS reduction would be 
proportional to those landings. For example, if a full-time vessel 
lands 9,000 lb (4,082 kg) during a declared ETAA trip in FY 2011, that 
vessel's FY 2012 DAS allocation would be reduced by 3.7 DAS (i.e., half 
of the DAS that would be deducted for a full trip).
    Framework 22 includes a provision that this DAS deduction would not 
apply to vessels that are fishing compensation trips in the ETAA from 
trips broken during the last 60 days of FY 2010. The regulations would 
allow for these compensation trips to be taken within the first 60 days 
of the subsequent FY if the access area from where the trip was broken 
remains open. Because the ETAA would still be considered an access area 
under the roll-over regulations at the start of FY 2011, any FY 2010 
compensation trips taken prior to April 29, 2011would not be counted 
against FY 2011 DAS.
    Framework 22 also proposes that NLS will close in FY 2011 but, 
under the roll-over FY 2010 measures in effect at the start of FY 2011, 
trips are currently allocated into NLS. In the event that Framework 22 
is not approved prior to the opening of NLS (June 15, 2011), Framework 
22 also proposes a pay-back measure to account for scallops that could 
be landed from vessels that declare NLS trips: If a vessel declares a 
trip into and lands scallops from the NLS in FY 2011, any pounds landed 
from this area would be deducted from that vessel's FY 2012 NLS 
allocation. NMFS would send a notification letter to the vessel 
regarding the incurred overage following the end of FY 2011. If the 
vessel is not allocated an NLS trip in FY 2012 under the ``split 
fleet'' random allocation process, the vessel owner would be given the 
opportunity to select the area from which the trip overage would be 
deducted, with NMFS determining the area if the vessel owner fails to 
respond.
    Framework 22 does not account for the effects of delays in 
implementation of Framework 22 on trip exchanges that occurred during 
the interim period between the start of FY 2011 and the implementation 
of Framework 22. Currently, Delmarva is the only access area which 
would remain open under measures in place at the start of FY 2011 and 
proposed in the Framework 22 measures. Because the regulations allow 
for allocated access area trip exchanges between vessels of the same 
permit category, and due to the mid-year implementation of Framework 
22, there would likely be complications for vessels that exchanged a 
Delmarva trip for a trip in either the ETAA or NLS prior to the 
implementation of Framework 22. For example, if a vessel gave up its 
Delmarva trip through an exchange with another vessel, and gained an 
additional NLS as a result, both its NLS trips would disappear after 
Framework 22 is implemented, assuming the vessel did not declare into 
and land scallops from the NLS. With the loss of its two NLS trips, two 
ETAA trips, and one traded Delmarva trip, the vessel would end up with 
a total FY 2011 access area allocation of three trips (e.g., one in HC, 
and either two in CAI or one in CAI and one in CAII). Conversely, the 
vessel that gained the additional Delmarva trip through the exchange 
would ultimately have a total FY 2011 access area trip allocation of 
five trips (e.g., two in Delmarva, one in HC, and either two in CAI or 
one in CAI and one in CAII). The identical outcome would occur if a 
vessel traded its Delmarva trip for another vessel's ETAA trip. 
Although the total number of trips between two vessels trading a 
Delmarva trip for either an ETAA or NLS trip would still equal eight 
trips (i.e., no additional landings result from the trip exchange that 
were not already accounted for in Framework 22's biological 
projections), the distribution of trips between these vessels would not 
be the identical for FY 2011 (i.e., one vessel would have a total of 
three trips and the other would have a total of five, rather than each 
vessel having a total of four). Similarly, if a part-time vessel trades 
its Delmarva trip for a trip into either the NLS or ETAA, that vessel 
would be locked into taking the trip in either of those areas. This 
trip, regardless of whether it's an NLS trip or an ETAA trip, would 
also disappear after the implementation of Framework 22, resulting in 
that part-time vessel having a total of only one access area trip to 
fish in any open access area.
    To avoid these and other potential inequitable consequences of trip 
exchanges due to the late implementation of Framework 22 to the extent 
practicable, NMFS proposes the following measure, under section 305(d) 
authority of the Magnuson-Stevens Act: If a vessel acquires an 
additional ETAA trip through a trip exchange, it will be credited for 
that trip with additional DAS, equivalent to the trip's possession 
limit, as soon as possible if and when Framework 22 is implemented. 
Under this proposal, a full-time vessel that had exchanged for an ETAA 
trip would receive a DAS credit of 7.4 DAS if that vessel did not 
declare into and fish that ETAA trip. That vessel would then have a 
total FY 2011 DAS allocation of 39.4

[[Page 23945]]

DAS (32 DAS plus 7.4 DAS). Similarly, part-time vessels would receive a 
credit of 5.9 DAS, if they initially receive an additional ETAA trip 
through a trip exchange that is later removed upon implementation of 
Framework 22. In order to apply this trip exchange DAS conversion 
consistently, NMFS proposes that if the vessel fishes any part of an 
ETAA trip it gained through a trip exchange, those landings would be 
converted to DAS, using the same calculation described previously, and 
deducted from any DAS credit applied to FY 2011, rather than deducted 
in FY 2012. Although the Council has generally applied pay-back 
measures due to late framework implementation in the subsequent FY, 
this DAS credit, if applied to the subsequent FY, could have unintended 
ACL implications in FY 2012 by increasing the risk that the LA fleet 
could exceed the ACL for that FY. Because Framework 22 proposes that 
NLS is closed in FY 2011, there is not a viable way to account for the 
loss of a traded NLS trip. By proposing a DAS credit applicable to ETAA 
trip exchanges, NMFS is providing a level of flexibility in trip 
exchanges during the interim period between the start of FY 2011 and 
implementation of Framework 22.
    No access area trips are currently allocated for CAI and CAII, and 
HC is currently closed, so no trips into those areas could be taken 
until Framework 22 is effective.
    Under Framework 22, during FY 2012 all full-time scallop vessels 
would be allocated a total of four access area trips (Table 4). Each 
full-time vessel would receive one trip into CAII, and one trip into 
HC. The remaining two access area trips would be allocated in the 
following combinations: One trip in CAI and one trip in NLS; one trip 
in CAI and one additional trip in HC; one trip in CAI and one trip in 
Delmarva; one trip in NLS and an additional trip in HC; one trip in NLS 
and one trip in Delmarva; or an additional trip in HC and one in 
Delmarva. Information on trip assignments would be available prior to 
the start of FY 2012. A part-time scallop vessel would be allocated two 
trips in FY 2012, which could be taken in one of the following 
combinations: Two trips in HC; one trip in the CAI and one trip in NLS; 
one trip in CAI and one trip in HC; one trip in CAI and one trip in 
Delmarva; one trip in NLS and one trip in HC; one trip in NLS and one 
trip in Delmarva; or one trip in HC and one trip in Delmarva. An 
occasional vessel would be allocated one trip, which could be taken in 
any one open access area.
    Also under Framework 22, at the start of FY 2013, all full-time 
scallop vessels would be allocated one trip in CAII, one trip in NLS, 
and one trip in HC (Table 4). In addition, half the fleet would be 
allocated a trip in Delmarva and the other half of the fleet would be 
allocated another trip in HC, for a total of four access area trips for 
each full-time vessel. These allocations would be assigned and made 
publically available prior to the start of FY 2013. A part-time scallop 
vessel would be allocated two trips, which could be taken in one of the 
following combinations: Two trips in HC; one trip in CAII and one trip 
in NLS; one trip in CAII and one trip in HC; one trip in CAII and one 
trip in Delmarva; one trip in NLS and one trip in HC; one trip in NLS 
and one trip in Delmarva; or one trip in HC and one trip in Delmarva. 
An occasional vessel would be allocated one trip, which could be taken 
in any one open access area.

      Table 4--Scallop Access Area Trip Allocations for Full-Time LA Scallop Vessels During FY 2011-2013 *
----------------------------------------------------------------------------------------------------------------
                                    CAI             CAII             NLAA              HC            Delmarva
----------------------------------------------------------------------------------------------------------------
2011........................             1.5              0.5  ...............              1                1
2012........................             0.5              1                0.5              1.5              0.5
2013........................  ..............              1                1                1.5              0.5
----------------------------------------------------------------------------------------------------------------
* Split-fleet trips are identified by ``0.5'' and ``1.5'': The ``0.5'' indicates that half the fleet would be
  allocated one full trip into a specific access area and the ``1.5'' indicates that all full-time vessels would
  be allocated one full trip into a specific access area and half of the vessels would be allocated an
  additional full trip into that area.

LAGC Measures

    1. Sub-ACL for LAGC vessels with IFQ permits. For LAGC vessels with 
IFQ permits, this action proposes a 2,910,800-lb (1,320-mt) ACL for FY 
2011, a 3,095,450-lb (1,404-mt) ACL for FY 2012, and an initial ACL of 
3,067,000 lb (1,391 mt) for FY 2013 (Table 1). IFQ allocations would be 
calculated by applying each vessel's IFQ contribution percentage to 
these ACLs. These allocations assume that no LAGC IFQ AMs are 
triggered. If a vessel exceeds its IFQ in a given FY, its IFQ for the 
subsequent FY would be deducted by the amount of the overage.
    2. Sub-ACL for LA Scallop Vessels with IFQ Permits. For LA scallop 
vessels with IFQ permits, this action proposes a 291,080-lb (132-mt) 
ACL for FY 2011, a 309,550-lb (140-mt) ACL for FY 2012, and an initial 
ACL of 306,700 lb (139 mt) for FY 2013 (Table 1). IFQ allocations would 
be calculated by applying each vessel's IFQ contribution percentage to 
these ACLs. These allocations assume that no LAGC IFQ AMs are 
triggered. If a vessel exceeds its IFQ in a given FY, its IFQ for the 
subsequent FY would be reduced by the amount of the overage.
    3. LAGC IFQ Trip Allocations and Possession Limits for Scallop 
Access Areas. The LAGC IFQ fishery would be allocated 5.5 percent of 
the overall TAC in each open access area for FYs 2011 through 2013. 
LAGC IFQ vessels would not be allocated trips into CAII, because these 
vessels are not expected to fish in that area due to its distance from 
shore. These percentages would result in a specific number of fleet-
wide trips for LAGC vessels fishing in access areas (Table 5). The 
areas would close to LAGC vessels when the Regional Administrator 
determines that the allocated number of trips have been taken in the 
applicable area.

   Table 5--LAGC Fleet-Wide Access Area Trip Allocations for FYs 2011
                              Through 2013
------------------------------------------------------------------------
                Access area                  FY 2011   FY 2012   FY 2013
------------------------------------------------------------------------
CAI.......................................       890       296  ........
CAII......................................         0         0         0
NLS.......................................  ........       296       595
HC........................................       593       887       893
Delmarva..................................       593       296       298
------------------------------------------------------------------------

    Because this action would be implemented mid-year, and the current 
regulations, which have rolled over into FY 2011, are inconsistent with 
the proposed specifications, it is possible that LAGC scallop vessels 
could exceed the final FY 2011 fleet-wide trip allocation in Delmarva 
under Framework 22. Additionally, LAGC vessels could declare and fish 
trips in NLS, proposed to be closed in FY 2011 under Framework 22, 
should Framework 22 be approved and

[[Page 23946]]

implemented after that area is currently scheduled to open on June 15, 
2011. Although the Council did not discuss this LAGC trip-overage 
scenario for Delmarva, NLS, and the ETAA in their Framework 22 
document, to make measures consistent with other Framework 22 measures 
applicable to the LA scallop fleet and with previous framework 
adjustments, NMFS proposes, under its section 305(d) authority, the 
following measures: The current regulations allocate 714 trips each 
into Delmarva and NLS. If LAGC vessels exceed the final number of 
allocated trips from Delmarva in FY 2011, the number of excess trips 
would be deducted from the LAGC IFQ fleet Delmarva trip allocation in 
FY 2012. Because NLS would close in FY 2011 under Framework 22, any 
LAGC trips declared into NLS will be in excess of that area's FY 2011 
fleet-wide trip allocation. As a result, if Framework 22 is 
implemented, LAGC vessels that declare into and land scallops from NLS 
would have the number of trips declared deducted from the LAGC IFQ 
fleet-wide NLS trip allocation in FY 2012. Although there will be 
fleet-wide LAGC trips into the ETAA at the start of FY 2011, this area 
would change to an open area under the proposed action. Because any 
landings from trips taken in the ETAA will be deducted from each 
vessel's IFQ allocations, and because there are no specific fleet-wide 
trips allocated to LAGC vessels fishing in open areas, there would be 
no pay-back measure associated with LAGC vessels that fish in the ETAA 
prior to the implementation of the proposed action.
    4. NGOM TAC. This action proposes a 70,000-lb (31,751-kg) annual 
NGOM TAC for FYs 2011 through 2013. These allocations for FY 2012 and 
FY 2013 assume that in a given FY there are no overages, which would 
trigger a pound-for-pound deduction in the subsequent FY to account for 
the overage based on measures proposed in Amendment 15.
    5. Scallop Incidental Catch Target TAC. This action proposes a 
50,000-lb (22,680-kg) scallop incidental catch target TAC for FYs 2011 
through 2013 to account for mortality from this component of the 
fishery, and to ensure that F-targets are not exceeded.

Research Set-Aside (RSA) Allocations

    As proposed in Amendment 15, this action would deduct 1.25 M lb 
(567 mt) of scallops annually for FYs 2011 through 2013 from the ABC 
and set it aside as the Scallop RSA to fund scallop research and to 
compensate participating vessels through the sale of scallops harvested 
under RSA projects. Upon final approval of Amendment 15 measures, this 
set-aside would be available for harvest in open areas. Framework 22 
would set the access area rotation schedule, and vessels would be able 
to harvest RSA from access areas upon implementation of Framework 22. 
Unlike previous scallop framework adjustments, Framework 22 does not 
propose specific RSA quota allocations within specific access areas. 
Projects would be assigned specific harvest allocations within access 
areas through the RSA application review and approval process, and a 
vessel with available RSA could harvest allotted RSA from an access 
area until the RSA allocated to that vessel and/or project is fully 
harvested.

Observer Set-Aside Allocations

    This action would remove 1 percent from the ABC and set it aside 
for the industry-funded observer program to help defray the cost of 
carrying an observer. This observer set-aside would be further divided 
proportionally into access areas and open areas. Scallop vessels on an 
observed DAS trip are charged a reduced DAS rate, and scallop vessels 
on an observed access area trip are authorized an increased possession 
limit. The Regional Administrator has specified the following 
compensation rate for the start of FY 2011: Vessels carrying an 
observer will receive 180 lb (82 kg) of scallops per day, or part of a 
day, when fishing in an access area, and LA DAS vessels will be 
compensated 0.08 DAS per DAS fished during observed open area trips 
(i.e., vessels will be charged 0.92 DAS per DAS fished with an observer 
onboard). The Regional Administrator shall periodically review, but at 
least once prior to each fishing year, all available fishery 
information to determine if these rates should be adjusted. The FY 2011 
through 2013 observer set-aside allocations for open and access areas 
are outlined in Table 6.

 Table 6--Open Area, Access Area, and Total Observer Set-Aside TACs for
                          FYs 2011 Through 2013
                    [mt, unless otherwise specified]
------------------------------------------------------------------------
                   Area                      FY 2011   FY 2012   FY 2013
------------------------------------------------------------------------
Open areas................................       139       161       136
Open (in DAS).............................       137       133       112
CAI.......................................        51        16       N/A
CAII......................................        16        31        36
NLS.......................................       N/A        16        38
HC........................................        34        49        57
Delmarva..................................        34        16        19
                                           -----------------------------
    Total.................................       273       290       287
------------------------------------------------------------------------

Measures to Minimize the Impacts of Incidental Take of Sea Turtles

    Under the Endangered Species Act, each Federal agency is required 
to ensure its actions are not likely to jeopardize the continued 
existence of any listed species or critical habitat. If a Federal 
action is likely to adversely affect a listed species, formal 
consultation is necessary. To date, five formal Section 7 
consultations, with resulting Biological Opinions, have been completed 
on the Atlantic sea scallop fishery. All five have had the same 
conclusion: The continued authorization of the scallop fishery may 
adversely affect, but is not likely to jeopardize, the continued 
existence of four sea turtles species (Kemp's ridley, loggerhead, 
green, and leatherback). In the accompanying Incidental Take Statements 
of the Biological Opinions, NMFS is required to identify and implement 
non-discretionary reasonable and prudent measures (RPMs) necessary or 
appropriate to minimize the impacts of any incidental take, as well as 
Terms and Conditions (T/C) for implementing each RPM. RPMs and T/C 
cannot alter the basic design, location, scope, duration, or timing of 
the action, and may involve only minor changes.
    Five RPMs and T/Cs were identified in the most recent Biological 
Opinion, as amended on February 5, 2009. Framework 22 includes 
management measures to comply with the first of these RPMs, which 
required a limit of fishing effort in the Mid-Atlantic during times 
when sea turtle distribution is expected to overlap with scallop 
fishing activity. The Biological Opinion required that this restriction 
be limited to a level that will not result in more than a minor impact 
on the scallop fishery.
    For FYs 2011 through 2013, Framework 22 defines ``more than a minor 
impact'' on the fishery as one that would result in a 10-percent or 
greater shift in baseline effort from the Mid-Atlantic during June 15 
through October 31 into other areas and times of year when sea turtle 
interactions are less likely. This definition, as well as management 
measures to comply with the Biological Opinion and any future 
Biological Opinions, will be re-evaluated for FY 2013 and future 
fishing years in subsequent framework actions. An informal consultation 
under the Endangered Species Act is being prepared to analyze the 
impact of the Framework 22 on threatened and endangered sea turtles. 
That informal consultation will be completed prior to the decision to 
approve or disapprove all or part of Framework 22, but NMFS

[[Page 23947]]

has preliminarily determined that fishing activities pursuant to 
Framework 22 will not affect endangered and threatened species or 
critical habitat in any manner not considered in prior consultations on 
this fishery.
    For FYs 2011 through 2013, Framework 22 proposes that each full-
time and part-time vessel would be restricted to taking one access area 
trip to areas located in the Mid-Atlantic (i.e., HC and Delmarva) 
during the period June 15 through October 31 of each specified FY. 
Although Framework 22 does not specifically outline which LA permit 
categories would be affected by this one-trip restriction, NMFS 
clarifies that this specific trip restriction is applicable to both 
part-time and full-time vessels because vessels in both permit 
categories would both be able to take up to two trips in the Mid-
Atlantic. However, Framework 22 does include an additional measure 
specific measure intended for full-time vessels: If a vessel has traded 
access area trips with another vessel so that it has a total allocation 
of four trips in the Mid-Atlantic access areas, the vessel would be 
able to fish up to two of the four trips during the period June 15 
through October 31. This measure is only applicable to full-time 
vessels because part-time vessels are only allocated a total of two 
access area trips to be fished in any open access area. Occasional 
vessels would not be affected by this measure because they would only 
be allocated a single access area trip. This provision is included in 
order to minimize any distributional impacts that may result from the 
proposed ``split fleet'' trip random allocation assignment and allows 
for more flexibility in access area trip exchanges. LAGC vessels 
fishing in the Mid-Atlantic access areas under the fleet-wide IFQ trips 
would also not be affected by this trip restriction.
    As with similar measures implemented through Framework 21 (75 FR 
36559; June 28, 2010), the Council proposed this trip restriction 
measure with the intention that there would be no change in the 
possession limit for trips taken during June 15 through October 31 of 
each year, and that the broken trip provision would apply to all trips. 
In order to be consistent with the Council's intention while also 
taking into account the fact that vessels can end a ``full-trip'' early 
and declare an additional trip as a compensation trip (thus declaring 
two trips to land the possession limit of a single full-trip), and to 
be consistent with how this measure was implemented and enforced in FY 
2010, NMFS proposes, under the authority of section 305(d) of the 
Magnuson-Stevens Act, to monitor compliance with the trip restriction 
using pounds landed during June 15 through October 31, rather than trip 
declarations, which could result in landings that are less than the 
allowable trip possession limit. For example, full-time and part-time 
LA vessels would be restricted to landing a maximum of 18,000 lb (8,165 
kg) for full-time vessels and 14,400 lb (6,532 kg) for part-time 
vessels from those areas (i.e., the equivalent of one full access area 
trip, depending on the permit category's possession limit). 
Additionally, if a full-time vessel has acquired four Mid-Atlantic 
access trips due to a trip exchange(s), that vessel would be restricted 
to landing a combined maximum of 36,000 lb (16,329 kg) from HC and 
Delmarva (i.e., the equivalent of two full access area trips). 
Compensation trips may not be combined during this time period in a way 
that would allow more than 14,400 lb (6,532 kg) for part-time vessels, 
18,000 lb (8,165 kg) for full-time vessels, or 36,000 lb (16,329 kg) 
for full-time vessels with a total allocation of four Mid-Atlantic 
access area trips, to be landed from HC and Delmarva, combined, from 
June 15 through October 31 of FYs 2011 through 2013. For example, if a 
full-time vessel is allocated two total trips into the Mid-Atlantic 
access areas and that vessel declared and subsequently broke one of the 
two trips into Mid-Atlantic access areas prior to June 15, it would 
have one full trip (i.e., 18,000 lb, 8,165 kg) available for use during 
the trip-restriction window. In that case, the vessel could only 
harvest up to 18,000 lb (8,165 kg) total from June 15 through October 
31, in the Mid-Atlantic access areas, either by fishing its 
compensation trip and part of its full access area trip or by fishing 
only one full access area trip and waiting to declare the compensation 
trip on or after November 1. If a vessel fishes any part of an access 
area trip in HC or Delmarva during this time period (i.e., starts a 
trip on June 13 and ends the trip on June 15), landings from that trip 
would count towards the one- or two-trip limit. The additional pounds 
allocated to vessels with on-board observers during trips taken within 
this time period would not count towards the aforementioned possession 
and landing restrictions.
    Because this action would be implemented mid-year, and the current 
regulations are inconsistent with the proposed specifications, it is 
possible that full-time and part-time vessels could exceed their final 
FY 2011 access area trip restrictions. Framework 22 did not address 
this possible inconsistency. To address this possibility of exceeding 
the trip-restriction measure outlined in Framework 22, NMFS proposes 
the measure described below under the authority of section 305(d) of 
the Magnuson-Stevens Act. If the proposed measure is implemented after 
June 15, 2011, a full-time or part-time vessel that landed more than 
18,000 lb (8,165 kg) or 14,400 lb (6,532 kg), respectively (i.e., more 
than the equivalent of one full access area trip), between June 15, 
2011, and the implementation of Framework 22, that vessel would be 
prevented from taking an access area trip in FY 2012 in the Mid-
Atlantic during June 15 through October. Alternatively, a full-time 
vessel could make up for the overage by trading in trips so that it had 
a total of four trips allocated into the Mid-Atlantic access areas and 
continue to fish up to a maximum of 36,000 lb (16,329 kg) through 
October 31, 2011 (i.e., the equivalent of two full access area trips).
    Framework 22 did not include a measure that would continue the 
Delmarva seasonal closure in September and October. Thus, if Framework 
22 is approved, this closure, implemented through Framework 21 and 
currently included in the regulations, would cease to exist.

Elimination of the GB Access Area Rotational Schedule

    This action proposes to eliminate the default GB access area 
schedule that was implemented through Framework 16 to the FMP (69 FR 
63460; November 2, 2004). The Council intended that this default cycle 
would be in place until the Council modified it through a future 
action. The schedule has based access area openings on the premise that 
an area would be open for 1 year, followed by a 2-year closure. 
However, the schedule has been consistently revised in framework 
actions based on area-specific scallop biomass projections. The pre-
defined schedule has led to inconsistencies between roll-over measures 
at the start of a FY when a framework is delayed and unnecessary 
confusion. This proposed measure would remove the schedule from the 
regulations, allowing for the GB access area scheduled openings to be 
based on updated resource information. Third-year default measures 
(e.g., FY 2013) would provide the access area schedule for a subsequent 
FY if the subsequent framework action is delayed past the start of the 
FY.

Classification

    Pursuant to section 304(b)(1)(A) of the Magnuson-Stevens Act, the 
NMFS Assistant Administrator has determined

[[Page 23948]]

that the proposed rule is consistent with the FMP, other provisions of 
the Magnuson-Stevens Act, and other applicable law, subject to further 
consideration after public comment. The regulatory language proposed in 
this action has incorporated, where applicable, the regulatory language 
proposed by Amendment 15.
    This proposed rule has been determined to be not significant for 
purposes of Executive Order 12866.
    An IRFA has been prepared, as required by section 603 of the 
Regulatory Flexibility Act (RFA). The IRFA consists of Framework 22 
analyses, its draft IRFA, and the preamble to this action. To some 
degree, this IRFA overlaps, and should be considered in conjunction, 
with the IRFA for Amendment 15, which provides the basis and authority 
for many measures in Framework 22. A summary of the analysis follows.

Statement of Objective and Need

    This action proposes the management measures and specifications for 
the Atlantic sea scallop fishery for FY 2011 and FY 2012, with FY 2013 
default measures. A description of the action, why it is being 
considered, and the legal basis for this action are contained in 
Framework 22 and the preamble of this proposed rule and are not 
repeated here.

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

    The RFA defines a small business entity in any fish-harvesting or 
hatchery business as a firm that is independently owned and operated 
and not dominant in its field of operation (including its affiliates), 
with receipts of up to $4 million annually. The vessels in the Atlantic 
sea scallop fishery are considered small business entities because all 
of them grossed less than $3 million according to the dealer's data for 
FYs 1994 to 2009. In FY 2009, total average revenue per full-time 
scallop vessel was just over $1 million, and total average scallop 
revenue per general category vessel was just under $80,000. The IRFA 
for this and prior Scallop FMP actions does not consider individual 
entity ownership of multiple vessels. More information about common 
ownership is being gathered, but the effects of common ownership 
relative to small versus large entities under the RFA is still unclear 
and will be addressed in future analyses.
    The Office of Advocacy at the Small Business Association (SBA) 
suggests two criteria to consider in determining the significance of 
regulatory impacts; namely, disproportionality and profitability. The 
disproportionality criterion compares the effects of the regulatory 
action on small versus large entities (using the SBA-approved size 
definition of ``small entity''), not the difference between segments of 
small entities. Framework 22 is not expected to have significant 
regulatory impacts on the basis of the disproportionality criterion, 
because all entities are considered to be small entities in the scallop 
fishery and, therefore, the proposed action would not place a 
substantial number of small entities at a significant competitive 
disadvantage relative to large entities. A summary of the economic 
impacts relative to the profitability criterion is provided below under 
``Economic Impacts of Proposed Measures and Alternatives.'' The 
proposed regulations would affect vessels with LA and LAGC scallop 
permits. The Framework 22 document provides extensive information on 
the number and size of vessels and small businesses that would be 
affected by the proposed regulations, by port and state. There were 313 
vessels that obtained full-time LA permits in 2010, including 250 
dredge, 52 small-dredge and 11 scallop trawl permits. In the same year, 
there were also 34 part-time LA permits in the sea scallop fishery. No 
vessels were issued occasional scallop permits. By the start of FY 
2010, the first year of the LAGC IFQ program, 362 IFQ permits 
(including 40 IFQ permits issued to vessels with a LA scallop permit), 
127 NGOM, and 294 incidental catch permits were issued. Since all 
scallop permits are limited access, vessel owners would only cancel 
permits if they decide to stop fishing for scallops on the permitted 
vessel permanently or if they transfer IFQ to another IFQ vessel and 
permanently relinquish the vessel's scallop permit. This is likely to 
be infrequent due to the value of retaining the permit. As such, the 
number of scallop permits could decline over time, but would likely be 
less than 10 permits per year.

Description of Projected Reporting, Recordkeeping, and Other Compliance 
Requirements

    This action contains no new collection-of-information, reporting, 
and recordkeeping requirements. It does not duplicate, overlap, or 
conflict with any other Federal law.

Economic Impacts of Proposed Measures and Alternatives

Summary of the Aggregate Economic Impacts

    A detailed analysis of the economic impacts of the proposed actions 
may be found in Section 5.4 of the Framework 22 document. All economic 
values are presented in terms of 2010 dollars and projected economic 
values presented below use a 7-percent discount rate to compare results 
to current values.
    Framework 22 would be implemented after the start of FY 2011 (March 
1, 2011) and the FY 2010 management measures and allocations are 
extended into FY 2011 until the proposed action is implemented. These 
current roll-over measures include open area LA allocation that are 
higher than proposed under Framework 22 (i.e., 38 DAS per full-time LA 
vessel, 15 DAS per part-time vessel, and 3 DAS per occasional vessel). 
Additionally, although the total number of access area trips allocated 
to LA vessels would remain the same under Framework 22 as what is 
currently allocated for the start of FY 2011 (i.e., four trips), the 
access areas from where these trips can be taken will differ. Framework 
22 included a number of provisions to account for the inconsistencies 
between allocations in effect at the start of FY 2011 and those that 
would be implemented under Framework 22. Generally, any overages 
incurred in FY 2011 will result in a pound-for-pound (or DAS-for-DAS) 
deduction in FY 2012 to account for the excess landings and fishing 
effort not accounted for in the Framework 22 biomass projections and 
resulting annual allocations. As a result, vessels that choose to 
exceed the FY 2011 allocations proposed in Framework 22 would have 
slightly higher revenues than the estimated fleet average in FY 2011, 
resulting in positive short-term impact on those individual vessels in 
FY 2011. Subsequently, those vessels receive reduced individual 
allocations in FY 2012 to account for the FY 2011 overage incurred by 
the vessel. This reduction would result in slightly lower revenues than 
the estimated average in FY 2012, resulting in a negative short-term 
impact on those vessels in FY 2012. However, over the long-term, the 
overage provisions proposed in Framework 22 are expected to reduce the 
negative impacts of overfishing in FY 2011 on the scallop resource. 
Therefore, these measures will have positive fleet-wide impacts on 
landings and revenues over the long term.
    The aggregate economic impacts of the proposed measures, including 
the open area DAS and access area allocations for LA vessels and ACLs 
for the LAGC fishery, are expected to be positive in both in the short-
term (FYs 2011-2012) and the long-term (FYs 2011-2022) compared to the 
No Action alternative and all other alternatives considered. Estimated 
fleet revenues

[[Page 23949]]

under the proposed action in FY 2011 are slightly lower than the 
average fleet revenues in FYs 2009 and 2010. In FY 2012, revenues are 
expected to exceed the average revenues in FYs 2009 and 2010. The 
proposed action is not expected to have short-term adverse impacts on 
the revenues and profits of the scallop vessels compared to recent 
levels. The impact of four allocation alternatives were evaluated in 
Framework 22: One alternative proposing a new closure in the Great 
South Channel (GSC; the ``GSC closure'' alternative); one alternative 
with full-time ``split fleet'' allocations and no new closure (the 
proposed action); one alternative with identical access area 
allocations (i.e., all full-time vessels are allocated access into the 
same areas) (the ``identical fleet allocation'' alternative) and the No 
Action alternative. With the exception of the No Action alternative, 
the total number of access area trips allocated to LA vessels remains 
the same for all alternatives.
    The definition of ``No Action'' refers to the continuation of the 
allocations that are specified in the current regulations. However, 
because of the restrictions set forth by the current GB rotational area 
schedules, which determine outside of annual allocations when an access 
area will be opened or closed to fishing in a given FY, the No Action 
alternative does not result in the same allocations or revenues as in 
FY 2010. Rather, No Action would result in one less access area trip in 
FY 2012 compared to FY 2010 due to the closure of NLS. In addition, No 
Action would allocate two trips to a less productive area (i.e., the 
ETAA). Due to these restrictions associated with No Action, the fishing 
effort in the access areas and landings overall are expected to be 
significantly lower compared to actual levels in FYs 2009 and 2010. As 
a result, The No Action alternative would result in significantly lower 
revenues ($364.5 M in FY 2011 and $290.2 M in FY 2012) compared to the 
actual revenues in FY 2009 ($379.5 M) and in FY 2010 ($431 M). From the 
perspective of the impacts on the economy and of the participants in 
the fishery, a baseline that would reflect potential economic impacts 
relative to the recent levels of allocations would be a more useful 
comparison. For this purpose, a Status Quo scenario was also 
incorporated into the economic analysis. This scenario allocated 
vessels exactly the same amount of access area trips and DAS in FYs 
2011 and 2012 as they had the opportunity to take in FY 2010, resulting 
in projected revenues ($433.1 M in FY 2011) that are very similar to 
the estimated revenues for FY 2010. Note that the Status Quo 
alternative is used here for analytical purposes in the economic impact 
analysis of Framework 22's allocations alternatives but was not 
actually considered by the Council, because it is based on an 
infeasible scenario that would increase the scallop fishing mortality 
above sustainable levels, resulting in reduced scallop yield and 
revenues in the long-term.

Economic Impacts of the Proposed Measures and Alternatives

1. Allocations for the LA and LAGC Scallop Fleets--Aggregate Impacts
    The proposed open area DAS allocations are expected to prevent 
overfishing in open areas. The proposed action would implement the 
following vessel-specific DAS allocations for FYs 2011 and 2012: Full-
time vessels would be allocated 32 and 34 DAS, respectively; part-time 
vessels would be allocated 13 and 14 DAS, respectively; and occasional 
vessels would receive 3 DAS for each FY. Additionally, full-time 
vessels would receive a total of four access area trips, part-time 
vessels would receive two access area trips, and occasional vessels 
would receive one access area trip.
    The Framework 22 analysis of the fleet-wide aggregate economic 
impacts indicate that the proposed action and all other alternatives 
would have positive economic impacts on the revenues and profits of the 
scallop vessels in the short-term (FYs 2011 and 2012), compared with 
the No Action alternative. Total fleet revenue under the proposed 
action is estimated at $399.1 million in FY 2011 and $428.4 million in 
FY 2012. Additionally, net revenues per vessel (i.e., gross revenues 
minus trip costs, used as a proxy for profits) are estimated to be 
$1,014,659 and $1,089,108 in FY 2011 and FY 2012, respectively. 
Compared with No Action fleet revenues ($364.5 M in FY 2011 and $290.1 
M in FY 2012), the proposed action would result in increases in fleet 
revenues of 9.6 percent and 47.6 percent in FYs 2011 and 2012, 
respectively; the ``GSC closure'' alternative would result in increases 
in revenues by 2.2 percent and 44.9 percent in FYs 2011 and 2012, 
respectively; and the ``identical fleet allocation'' alternative would 
result in increases in revenues by 10.3 percent and 44.3 percent in FYs 
2011 and 2012, respectively. In terms of net revenues per vessel 
($917,452 in FY 2011 and $732,848 M in FY 2012 for No Action), the 
proposed action would result in higher vessel net revenues (10.6 
percent in FY 2011 and 48.6 percent in FY 2012). Vessel net revenues 
would also be higher under the ``GSC closure'' and ``identical fleet 
allocation'' alternatives as well, ranging between 3.1-11.3 percent 
higher in FY 2011 and 45.2-45.5 percent higher in FY 2012. In both the 
short- and long-term, the proposed action would result in larger 
cumulative fleet and vessel net revenues than both the ``GSC closure'' 
alternative and the ``identical fleet allocation.'' The proposed action 
fleet revenues are estimated to exceed the revenues for the ``identical 
fleet allocation'' alternative by $6.5 M and $53 M in the short-term 
and long-term, respectively. The proposed action revenues are expected 
to exceed those for the ``GSC closure'' alternative by an even greater 
amount: $33.5 M and $98.9 M more in the short-term and long-term, 
respectively. Furthermore, the proposed action would result in a more 
constant stream of landings compared to the other two alternatives, 
providing stability in business operations.
    Compared to the Status Quo alternative, the proposed action would 
result in gross fleet revenues about $47.9 M lower in the short-term, 
resulting in estimates of gross revenue per vessel to be 7.9 percent 
and 4.1 percent, less than those under Status Quo in FY 2011 and FY 
2012, respectively. These decreases in fleet and vessel revenues 
compared to those estimated under Status Quo are due to the fact that 
the Status Quo alternative does not take projected scallop biomass 
levels into account: Although landings and revenues are higher in the 
short-term under the Status Quo scenario, by setting future allocations 
based on a fishing mortality that exceeds sustainable levels, the 
Status Quo reduces yield and revenues in the long-term. From FYs 2011-
2022, the proposed action would have positive economic impacts compared 
to Status Quo, exceeding Status Quo fleet revenues by $19.8 M. Over the 
medium term (FYs 2011-2015) the proposed action would result in higher 
revenues per vessel compared to the Status Quo--5.8 percent in FY 2013 
and 3.7 percent in FYs 2014 and 2015--thus offsetting the decreases in 
FYs 2011 and 2012. Because the cumulative value of the scallop net 
revenue per vessel will be only marginally lower (0.1 percent) in the 
medium-term compared to the Status Quo values, the proposed action will 
not have significant impacts for the scallop vessels compared to Status 
Quo levels.
    The proposed action would have positive economic benefits in both 
the short- and long-term for the LAGC

[[Page 23950]]

fishery starting in FY 2011, as the LAGC ACL would increase compared to 
No Action allocations. Under the proposal, LAGC vessels would be 
allocated 5 percent of the total ACL and the LA vessels with the IFQ 
permits would be allocated 0.5-percent of the ACL. The positive short- 
and long-term economic impacts of the proposed measures for the LAGC 
vessels, compared to the No Action alternative, result from the higher 
allocation of fish to the LAGC fleets (1.3 percent higher in FY 2011 
and 2.9 percent higher in FY 2012) than those allocated under No 
Action. In addition, compared to FY 2010 revenues, which was the first 
year that the LAGC IFQ Program was implemented, the revenues of LAGC 
vessels will be higher under the proposed action. There are no 
alternatives that would generate higher economic benefits for the 
participants of the scallop fishery. In fact, because the LAGC 
allocations are derived from the ACL, the values are identical across 
all alternatives considered, with the exception of No Action.
    In summary, the proposed action will not have a considerable 
adverse impact on the net revenues and profits on the LA and LAGC 
scallop fleets. Therefore, the proposed action is not expected to have 
significant economic impacts on the viability of these vessels, 
especially in a highly profitable industry like the scallop fishery.
2. Default Management Measures for FY 2013
    The proposed action to set precautionary default measures for FY 
2013 is also expected to have potentially positive economic impacts. If 
resource conditions turn out to be less favorable in FY 2013 than 
suggested by the current biological projections, and the next framework 
is delayed, this measure would allocate only 26 DAS, rather than 35 
DAS, to prevent potentially negative impacts on the resource, including 
impacts on scallop yield and subsequent impacts on scallop prices. 
There are no alternatives that would generate higher economic benefits 
for the participants of the scallop fishery.
3. Access Area Trip Allocations and Use of Split-Fleet Trips Allocated 
Through a Lottery System
    The proposed action to allocate split-fleet trips into access areas 
with biomass levels not large enough to support a full trip would 
increase landings, revenues, and total economic benefits to the 
fishery. The administration of the random allocation process is 
expected to have positive economic impacts on the fishermen by 
providing flexibility for the vessels to trade access area trips. With 
the exception of the No Action alternative, all alternatives considered 
the same number of access area trips. There were no other alternatives 
considered that would generate higher economic benefits for the 
participants of the scallop fishery.
4. Open Area DAS Adjustment if Access Area YTF TAC is Attained
    The proposed action maintains provisions that allocate additional 
open area DAS if an access area closes due to the attainment of the 
scallop YTF TAC for unused access area trips (i.e., fully unused trips 
and compensation trips). This allocation is a continuation of current 
measures and would have the same impacts as the No Action alternative. 
This conversion helps to minimize lost catch and revenue for affected 
vessels if CAI and CAII and/or NLS close due to the full harvest of YTF 
quota. As a result, this measure would have positive economic impacts 
on scallop vessels, although the scallop pounds per trip could be lower 
than the allocated pounds for GB and/or SNE/MA access area trips due to 
proration to assure that the measure is conservation neutral. There 
were no alternatives considered that would generate higher economic 
benefits for the participants of the scallop fishery.
5. RSA and Observer Set-Aside TACs
    The proposed action would set aside 1 percent of the ABC for the 
industry-funded observer set-aside program, and would set aside 1.25 M 
lb (567 mt) from the ABC for the RSA program, based on measures 
proposed in Amendment 15. These set-asides are expected to have 
indirect economic benefits for the scallop fishery by improving scallop 
information and data made possible by research and the observer 
program. Although allocating a higher observer set-aside percentage or 
higher RSA allocation could result in higher indirect benefits to the 
scallop fleet by increasing available funds for research and the 
observer program, these set-aside increases could also decrease direct 
economic benefits to the fishery by reducing revenues, and no such 
alternatives were considered.
6. NGOM TAC
    The proposed action specifies a 70,000-lb (31,751-kg) TAC for the 
NGOM. This is the same TAC as the No Action alternative. Thus, the 
proposed action would not have additional economic impacts on the 
participants of the NGOM fishery. The NGOM TAC has been specified at 
this level since FY 2008, and the fishery has harvested less than 15 
percent of the TAC in each FY; therefore, the TAC has no negative 
economic impacts. There are no alternatives that would generate higher 
benefits for NGOM scallop vessels. The alternative for setting the NGOM 
TAC at 31,100 lb (14,107 kg) is expected to reduce the chance of excess 
fishing in Federal waters in the NGOM management area, but could result 
in negative impacts on the participants of the NGOM fishery if landings 
from NGOM-permitted vessels fishing in state waters lead to the closure 
of the NGOM management area.
7. Measures To Minimize the Impacts of Incidental Take of Sea Turtles
    The proposed action would limit the maximum number of trips that 
can be taken in the Mid-Atlantic areas from June 15 to October 31. 
Because fishing effort is shifted to a relatively less productive 
season, total fleet trip costs are expected to increase slightly (i.e., 
less than 0.1 percent) due to reduced scallop catch rates. Since there 
is no change in the scallop possession limit, the trips that are 
shifted from this season are expected to be taken outside of this time 
period without a loss in total revenue, as long as this measure does 
not, as expected, have a negative impact on prices. No other 
alternatives considered would generate higher benefits for the scallop 
vessels, other than the No Action alternative, which would continue the 
FY 2010 measures implemented by Framework 21 (an access area trip-
restriction of 2 trips (or 36,000 lb; 16,329 kg) between June 15 and 
August 31 in the ETAA and Delmarva, as well as seasonal closures in 
Delmarva and ETAA during September and October). Because the basis for 
No Action is the regulations that match the FY 2010 allocations 
implemented through Framework 21, the No Action alternative would not 
account for the opening of HC and would not take the ETAA into account 
if it were to revert to an open area, thus only reducing effort in 
Delmarva. As a result, the No Action alternative would likely not 
comply with the relevant RPM and T/Cs of the Biological Opinion and 
thus, was not considered by the Council. The proposed action is 
expected to minimize the effort shift from the given time period 
compared to the other action alternatives considered by the Council; 
thus, there are no other alternatives that would generate higher 
benefits for the scallop vessels.
8. Elimination of the GB Closed Area Rotation Schedule
    The elimination of the GB rotation schedule that indicates the 
opening and

[[Page 23951]]

closing of access areas in the regulations would reduce the public's 
confusion and administrative burden. Instead, access area schedules 
would be based solely on survey results and available exploitable 
biomass as assessed by the Scallop PDT and the SSC. These schedules 
would be approved by the Council and implemented biannually through the 
framework adjustment process. The proposed action would improve the 
management of the scallop resource, with positive impacts on the 
scallop yield and on economic benefits from the scallop fishery. There 
are no alternatives that would generate higher benefits for the scallop 
vessels.

List of Subjects in 50 CFR Part 648

    Fisheries, Fishing, Recordkeeping and reporting requirements.

    Dated: April 25, 2011.
Samuel D. Rauch III,
Deputy Assistant Administrator for Regulatory Programs, National Marine 
Fisheries Service.

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

PART 648--FISHERIES OF THE NORTHEASTERN UNITED STATES

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

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

    2. In Sec.  648.14, paragraphs (i)(2)(vi)(F) and (G) are revised to 
read as follows:


Sec.  648.14  Prohibitions.

* * * * *
    (i) * * *
    (2) * * *
    (vi) * * *
    (F) Unless specified in paragraph (i)(2)(vi)(F)(1) of this section, 
a full-time vessel shall not fish for, possess, or retain more than a 
combined total of 18,000 lb (8,165 kg; the equivalent of one full-time 
access area trip) of scallops from the Delmarva and Hudson Canyon 
Access Areas specified in Sec.  648.59(a) and (e) during the period 
June 15 through October 31. Any scallops fished for, possessed, or 
retained during this time period from either Delmarva and Hudson Canyon 
Access Areas, regardless of whether or not they were harvested on a 
single access area trip or on multiple trips by taking compensation 
trips, as specified in Sec.  648.60(c), will be applied to this 
possession and landing limit. This restriction does not include the 
additional possession allowance to defray the cost of carrying an 
observer, as specified in Sec.  648.60(d), that occur during observed 
trips between June 15 through October 31.
    (1) If the owner of a full-time vessel has exchanged a trip(s) with 
another full-time vessel owner(s), as specified in Sec.  
648.60(a)(3)(ii), so that the vessel has a total access area trip 
allocation of four combined trips into the Delmarva and Hudson Canyon 
Access Areas (e.g., two Hudson Canyon trip and two Delmarva trips; one 
Hudson Canyon trip and three Delmarva trips, three Hudson Canyon trips 
and one Delmarva trip; no Hudson Canyon trips and four Delmarva trips; 
or four Hudson Canyon trips and no Delmarva trips) that vessel must not 
fish for, possess, or retain more than a combined total of 36,000 lb 
(16,329 kg; the equivalent of two full-time access area trips) of 
scallops from the Delmarva and Hudson Canyon Access Areas specified in 
Sec.  648.59(a) and (e) during the period June 15 through October 31. 
Any scallops fished for, possessed, or retained during this time period 
from either Delmarva and Hudson Canyon Access Areas, regardless of 
whether or not they were harvested on a single access area trip or on 
multiple trips by taking compensation trips, as specified in Sec.  
648.60(c), will be applied to this possession and landing limit. This 
restriction does not include the additional possession allowance to 
defray the cost of carrying an observer, as specified in Sec.  
648.60(d), that occur during observed trips between June 15 through 
October 31.
    (2) [Reserved]
    (G) Part-time vessels shall not fish for, possess, or retain more 
than a combined total of 14,400 lb (6,532 kg; the equivalent of one 
part-time access area trip) of scallops from the Delmarva and Hudson 
Canyon Access Areas specified in Sec.  648.59(a) and (e) during the 
period June 15 through October 31. Any scallops fished for, possessed, 
or retained during this time period from either Delmarva and Hudson 
Canyon Access Areas, regardless of whether or not they were harvested 
on a single access area trip or on multiple trips by taking 
compensation trips, as specified in Sec.  648.60(c), will be applied to 
this possession and landing limit. This restriction does not include 
the additional possession allowance to defray the cost of carrying an 
observer, as specified in Sec.  648.60(d), that occur during observed 
trips between June 15 through October 31.
* * * * *
    3. In Sec.  648.53:
    a. The section heading is revised;
    b. Paragraph (a), the introductory text to paragraph (b), 
paragraphs (b)(1), (b)(4), (b)(5), (c), (d), (g), (h)(2)(iii), 
(h)(3)(i)(A), (h)(3)(i)(B), (h)(3)(i)(C), the introductory text to 
paragraph (h)(4), and paragraphs (h)(5)(ii), (h)(5)(iii), and 
(h)(5)(iv) are revised;
    c. Paragraphs (h)(2)(v) and (h)(2)(vi) are added; and
    d. Paragraph (b)(2) is removed and reserved
    The revisions and additions read as follows:


Sec.  648.53  Acceptable biological catch (ABC), annual catch limits 
(ACL), annual catch targets (ACT), DAS allocations, and individual 
fishing quotas (IFQ).

    (a) Scallop fishery ABC. The ABC for the scallop fishery shall be 
established through the framework adjustment process specified in Sec.  
648.55 and is equal to the overall scallop fishery ACL. The ABC/ACL 
shall be divided as sub-ACLs between limited access vessels, limited 
access vessels that are fishing under a limited access general category 
permit, and limited access general category vessels as specified in 
paragraphs (a)(3) and (a)(4) of this section, after deducting the 
scallop incidental catch target TAC specified in paragraph (a)(2) of 
this section, observer set-aside specified in paragraph (g)(1) of this 
section, and research set-aside specified in Section 648.56(d). The 
ABC/ACL for the 2013 fishing year is subject to change through a future 
framework adjustment.
    (1) ABC/ACL for fishing years 2011 through 2013 shall be:
    (i) 2011: 27,269 mt.
    (ii) 2012: 28,961 mt.
    (iii) 2013: 28,700 mt.
    (2) Scallop incidental catch target TAC. The incidental catch 
target TAC for vessels with incidental catch scallop permits is 50,000 
lb (22.7 mt) for fishing years 2011, 2012, and 2013.
    (3) Limited access fleet sub-ACL and ACT. The limited access 
scallop fishery shall be allocated 94.5 percent of the ACL specified in 
paragraph (a)(1) of this section, after deducting incidental catch, 
observer set-aside, and research set-aside, as specified in this 
paragraph (a). ACT for the limited access scallop fishery shall be 
established through the framework adjustment process described in Sec.  
648.55. DAS specified in paragraph (b) of this section shall be based 
on the ACTs specified in paragraph (a)(3)(ii) of this section. The 
limited access fleet sub-ACL and ACT for the 2013 fishing year are 
subject to change through a future framework adjustment.
    (i) The limited access fishery sub-ACLs for fishing years 2011 
through 2013 are:
    (A) 2011: 24,954 mt.
    (B) 2012: 26,537 mt.

[[Page 23952]]

    (C) 2013: 26,293 mt.
    (ii) The limited access fishery ACTs for fishing years 2011 through 
2013 are:
    (A) 2011: 21,431 mt.
    (B) 2012: 23,546 mt.
    (C) 2013: 19,688 mt.
    (4) LAGC fleet sub-ACL. The sub-ACL for the LAGC IFQ fishery shall 
be equal to 5.5 percent of the ACL specified in paragraph (a)(1) of 
this section, after deducting incidental catch, observer set-aside, and 
research set-aside, as specified in this paragraph (a). The LAGC IFQ 
fishery ACT shall be equal to the LAGC IFQ fishery's ACL. The ACL for 
the LAGC IFQ fishery for vessels issued only a LAGC IFQ scallop permit 
shall be equal to 5 percent of the ACL specified in paragraph (a)(1) of 
this section, after deducting incidental catch, observer set-aside, and 
research set-aside, as specified in this paragraph (a). The ACL for the 
LAGC IFQ fishery for vessels issued only both a LAGC IFQ scallop permit 
and a limited access scallop permit shall be 0.5 percent of the ACL 
specified in paragraph (a)(1) of this section, after deducting 
incidental catch, observer set-aside, and research set-aside, as 
specified in this paragraph (a). The LAGC ACLs for the 2013 fishing 
year are default allocations and are subject to change through a future 
framework adjustment.
    (i) The ACLs for fishing years 2011 through 2013 for LAGC IFQ 
vessels without a limited access scallop permit are:
    (A) 2011: 1,320 mt.
    (B) 2012: 1,404 mt.
    (C) 2013: 1,391 mt.
    (ii) The ACLs for fishing years 2011 through 2013 for vessels 
issued both a LAGC and a limited access scallop permit are:
    (A) 2011: 132 mt.
    (B) 2012: 140 mt.
    (C) 2013: 139 mt.
    (b) DAS allocations. DAS allocations for limited access scallop 
trips in all areas other than those specified in Sec.  648.59 shall be 
specified through the framework adjustment process, as specified in 
Sec.  648.55, using the ACT specified in paragraph (a)(3)(ii) of this 
section. A vessel's DAS shall be determined and specified in paragraph 
(b)(4) of this section by dividing the total DAS specified in the 
framework adjustment by the landings per unit effort (LPUE) specified 
in paragraph (b)(1) of this section, then dividing by the total number 
of vessels in the fleet.
    (1) Landings per unit effort (LPUE). LPUE is an estimate of the 
average amount of scallops, in pounds, that the limited access scallop 
fleet lands per DAS fished. The estimated LPUE is the average LPUE for 
all limited access scallop vessels fishing under DAS, and shall be used 
to calculate DAS specified in paragraph (b)(4) of this section, the DAS 
reduction for the AM specified in paragraph (b)(4)(ii) of this section, 
and the observer set-aside DAS allocation specified in paragraph (g)(1) 
of this section. LPUE shall be:
    (i) 2011 fishing year: 2,441 lb/DAS.
    (ii) 2012 fishing year: 2,662 lb/DAS.
    (iii) 2013 fishing year: 2,676 lb/DAS.
* * * * *
    (4) Each vessel qualifying for one of the three DAS categories 
specified in the table in this paragraph (b)(4) (full-time, part-time, 
or occasional) shall be allocated the maximum number of DAS for each 
fishing year it may participate in the open area limited access scallop 
fishery, according to its category, excluding carryover DAS in 
accordance with paragraph (d) of this section. DAS allocations shall be 
determined by distributing the portion of ACT specified in paragraph 
(a)(3)(ii), as reduced by access area allocations specified in Sec.  
648.59, and dividing that amount among vessels in the form of DAS 
calculated by applying estimates of open area LPUE specified in 
paragraph (b)(1) of this section. Allocation for part-time and 
occasional scallop vessels shall be equal to 40 percent and 8.33 
percent of the full-time DAS allocations, respectively. DAS allocations 
for the 2013 fishing year are default allocations and are subject to 
change through a future framework adjustment. The annual open area DAS 
allocations for each category of vessel for the fishing years indicated 
are as follows:

------------------------------------------------------------------------
                    Scallop open area DAS allocations
-------------------------------------------------------------------------
              Permit category                 2011      2012      2013
------------------------------------------------------------------------
Full-Time.................................        32        34        26
Part-Time.................................        13        14        11
Occasional................................         3         3         3
------------------------------------------------------------------------

    (i) If, prior to the implementation of Framework 22, a limited 
access vessel uses more open area DAS in the 2011 fishing year than 
specified in this section, such vessel shall have the DAS used in 
excess of the 2012 fishing year allocation specified in this paragraph 
(b)(4) deducted from its fishing year 2012 open area DAS allocation.
    (ii) Accountability measures (AM). Unless the limited access AM 
exception is implemented in accordance with the provision specified in 
paragraph (b)(4)(iii) of this section, if the ACL specified in 
paragraph (a)(3)(i) of this section is exceeded for the applicable 
fishing year, the DAS specified in paragraph (b)(4) of this section for 
each limited access vessel shall be reduced by an amount equal to the 
amount of landings in excess of the ACL divided by the applicable LPUE 
for the fishing year in which the AM will apply as specified in 
paragraph (b)(1) of this section, then divided by the number of scallop 
vessels eligible to be issued a full-time limited access scallop 
permit. For example, assuming a 300,000-lb (136-mt) overage of the ACL 
in 2011, an open area LPUE of 2,500 lb (1.13 mt) per DAS in 2012, and 
313 full-time vessels, each full-time vessel's DAS would be reduced by 
0.38 DAS (300,000 lb (136 mt)/2,500 lb (1.13 mt) per DAS = 120 lb (0.05 
mt) per DAS/313 vessels = 0.38 DAS per vessel). Deductions in DAS for 
part-time and occasional scallop vessels shall be equal to 40 percent 
and 8.33 percent of the full-time DAS deduction, respectively, as 
calculated pursuant to this paragraph (b)(4)(ii). The AM shall take 
effect in the fishing year following the fishing year in which the 
overage occurred. For example, landings in excess of the ACL in fishing 
year 2011 would result in the DAS reduction AM in fishing year 2012. If 
the AM takes effect, and a limited access vessel uses more open area 
DAS in the fishing year in which the AM is applied, the vessel shall 
have the DAS used in excess of the allocation after applying the AM 
deducted from its open area DAS allocation in the subsequent fishing 
year. For example, a vessel initially allocated 32 DAS in 2011 uses all 
32 DAS prior to application of the AM. If, after application of the AM, 
the vessel's DAS allocation is reduced to 31 DAS, the vessel's DAS in 
2012 would be reduced by 1 DAS.
    (iii) Limited access AM exception--(A) If NMFS determines, in 
accordance with paragraph (b)(4)(ii) of this section, that the fishing 
mortality rate associated with the limited access fleet's landings in a 
fishing year is less than 0.24, the AM specified in paragraph 
(b)(4)(ii) of this section shall not take effect. The fishing mortality 
rate of 0.24 is the fishing mortality that is one standard deviation 
below the fishing mortality rate for the scallop fishery ACL, currently 
estimated at 0.28.
    (B) If the limited access AM exception described in this paragraph 
(b)(4)(iii) is invoked, the Regional Administrator shall increase the 
sub-ACL for the LAGC IFQ fleet specified in paragraph (a)(4)(i) of this 
section by the amount of scallops equal to 5.5 percent of the amount of 
scallop landings in excess of the limited access fleet's ACL specified 
in paragraph (a)(3)(i) of this section. The applicable sub-ACL for the 
limited access fleet specified in paragraph (a)(3)(i) of this section 
shall be reduced by the amount equivalent to the increase

[[Page 23953]]

in the sub-ACL for LAGC IFQ specified pursuant to this paragraph 
(b)(4)(iii)(B). For example, if the limited access fishery ACL is 
exceeded by 1 million lb (453.6 mt), but the limited access AM 
exception is invoked, the LAGC sub-ACL shall be increased, and the 
limited access fleet's ACL decreased, by 55,000 lb (24.9 mt) (1 million 
lb (453.6 mt) x 5.5% (0.055) = 55,000 lb (24.9 mt)). The ACL 
adjustments in this paragraph (b)(4)(iii)(B) shall take effect in the 
fishing year immediately following the fishing year in which the 
overage of the ACL occurred. For example, for an ACL overage in the 
2011 fishing year, the adjustments due to implementation of the 
exception would be implemented in the 2012 fishing year.
    (iv) Limited access fleet AM and exception provision timing. The 
Regional Administrator shall determine whether the limited access fleet 
exceeded its ACL specified in paragraph (a)(3)(i) of this section by 
July of the fishing year following the year for which landings are 
being evaluated. On or about July 1, the Regional Administrator shall 
notify the New England Fishery Management Council (Council) of the 
determination of whether or not the ACL for the limited access fleet 
was exceeded, and the amount of landings in excess of the ACL. Upon 
this notification, the Scallop Plan Development Team (PDT) shall 
evaluate the overage and determine if the fishing mortality rate 
associated with total landings by the limited access scallop fleet is 
less than 0.24. On or about September 1 of each year, the Scallop PDT 
shall notify the Council of its determination, and the Council, on or 
about September 30, shall make a recommendation, based on the Scallop 
PDT findings, concerning whether to invoke the limited access AM 
exception. If NMFS concurs with the Scallop PDT's recommendation to 
invoke the limited access AM exception, in accordance with the APA, the 
limited access AM shall not be implemented. If NMFS does not concur, in 
accordance with the APA, the limited access AM shall be implemented as 
soon as possible after September 30 each year.
    (v) The Elephant Trunk Access Area shall change to an open area 
starting in fishing year 2011. For reference, the Elephant Trunk Sea 
Scallop Access Area was defined by straight lines connecting the 
following points in the order stated (copies of a chart depicting the 
area previously known as the Elephant Trunk Access Area are available 
from the Regional Administrator upon request):

------------------------------------------------------------------------
             Point                     Latitude            Longitude
------------------------------------------------------------------------
ETAA1..........................  38[deg]50' N.        74[deg]20' W.
ETAA2..........................  38[deg]10' N.        74[deg]20' W.
ETAA3..........................  38[deg]10' N.        73[deg]30' W.
ETAA4..........................  38[deg]50' N.        73[deg]30' W.
ETAA1..........................  38[deg]50' N.        74[deg]20' W.
------------------------------------------------------------------------

     (vi) If, prior to the implementation of Framework 22, a vessel 
lands all or part of an Elephant Trunk Access Area trip than was 
allocated at the start of the 2011 fishing year, any pounds landed from 
that declared Elephant Trunk Access Area trip would be converted to DAS 
and deducted from the vessel's open area DAS allocations in fishing 
year 2012. This DAS deduction would be equivalent to the scallop 
fishing mortality resulting from the open area DAS allocation. For 
example, if a full-time vessel lands the full 18,000-lb (8,165-kg) 
possession limit from an Elephant Trunk Access Area trip allocated at 
the start of the 2011 fishing year, the pounds landed would be 
converted to DAS and deducted from the vessel's 2012 fishing year DAS 
allocation as follows: The 18,000 lb (8,165-kg) would first be 
multiplied by the estimated average meat count in the Elephant Trunk 
Access Area (18.4 meats/lb) and then divided by the estimated open area 
average meat count (also 18.4 meats/lb) and by the estimated open area 
LPUE for fishing year 2011 (2,441 lb/DAS), resulting in a DAS deduction 
of 7.4 DAS ((18,000 lb x 18.4 meats/lb)/(18.4 meats/lb x 2,441 lb/DAS) 
= 7.4 DAS). This amount would be deducted from that vessel's 2012 
fishing year (i.e., 34 DAS minus 7.4 DAS), resulting in a total 2012 
fishing year DAS allocation of 26.6 DAS. Similarly, Part-time and 
occasional vessels shall receive deductions of 5.9 DAS and 2.5 DAS, 
respectively, based on their respective possession limits, for landing 
their full trip possession limits from the area formerly known as the 
Elephant Trunk Access Area. If a vessel only lands a portion of its 
full possession limit, the applicable DAS reduction shall be 
proportional to those landings. For example, if a full-time vessel 
lands 9,000 lb (4,082 kg) during a declared Elephant Trunk Access Area 
trip, that vessel's fishing year 2012 DAS allocation would be reduced 
by 3.7 DAS (i.e., half of the DAS that would be deducted for a full 
trip).
    (vii) If, prior to the implementation of Framework 22, a vessel 
owner exchanges an Elephant Trunk Access Area trip for another access 
area trip as specified in Sec.  648.60(a)(3)(ii) in fishing year 2011, 
the vessel that receives an additional Elephant Trunk Access Area trip 
would receive a DAS credit of 7.4 DAS in FY 2011, resulting in a total 
fishing year 2011 DAS allocation of 39.4 DAS (32 DAS plus 7.4 DAS). 
This DAS credit from unused Elephant Trunk Access Area trip gained 
through a trip exchange is based on a full-time vessel's 18,000-lb 
(8,165-kg) possession limit and is calculated by using the formula 
specified in paragraph (b)(4)(vi) but the DAS conversion is applied as 
a DAS credit in the 2011 fishing year, rather than as a DAS deduction 
in fishing year 2012. Similarly, using the same calculation with a 
14,400-lb (6,532-kg) possession limit, part-time vessels would receive 
a credit of 5.9 DAS if the vessel owner received an additional Elephant 
Trunk Access Area trip through a trip exchange in the interim between 
the start of the 2011 fishing year and the implementation of Framework 
22 and did not use it. If a vessel fishes any part of an Elephant Trunk 
Access Area trip gained through a trip exchange, those landings would 
be deducted from any DAS credit applied to the 2011 fishing year. For 
example, if a full-time vessel lands 10,000 lb (4,536 kg) from an 
Elephant Trunk Access Area trip gained through a trip exchange, the 
pounds landed would be converted to DAS and deducted from the trip-
exchange credit as follows: The 10,000 lb (4,536 kg) would first be 
multiplied by the estimated average meat count in the Elephant Trunk 
Access Area (18.4 meats/lb) and then divided by the estimated open area 
average meat count (also 18.4 meats/lb) and by the estimate open area 
LPUE for fishing year 2011 (2,441 lb/DAS), resulting in a DAS deduction 
of 4.1 DAS ((10,000 lb x 18.4 meats/lb)/(18.4 meats/lb x 2,441 lb/DAS) 
= 4.1 DAS). Thus, this vessel would receive a reduced DAS credit in FY 
2011 to account for the Elephant Trunk Access Area trip exchange of 3.3 
DAS (7.4 DAS - 4.1 DAS = 3.7 DAS).
    (5) Additional open area DAS. (i) When Closed Area I, Closed Area 
II, and/or the Nantucket Lightship Access Areas close due to the 
yellowtail flounder bycatch TAC, for each remaining complete trip in 
each of these Access Areas, a full-time, part-time, or occasional 
vessel may fish an additional DAS in open areas during the same fishing 
year. Part-time and occasional vessels shall only receive additional 
DAS if there are no other access areas available in which to take an 
access area trip. A complete trip is deemed to be a trip that is not 
subject to a reduced possession limit under the broken trip provision 
in Sec.  648.60(c). The Access Area DAS trip conversion for fishing

[[Page 23954]]

years 2011 and 2013 are specified in paragraph (b)(5)(ii) of this 
section.
    (ii) Access area trip conversion to open area DAS.

----------------------------------------------------------------------------------------------------------------
                                  Access area trip conversion to open area DAS
-----------------------------------------------------------------------------------------------------------------
                 Permit category                        FY              CAI            CAII            NLAA
----------------------------------------------------------------------------------------------------------------
Full-Time.......................................            2011             4.3             5.7             N/A
                                                            2012             4.4             5.4             4.3
                                                            2013             N/A             5.4             4.9
Part-Time.......................................            2011             3.4             4.5             N/A
                                                            2012             3.6             4.3             3.4
                                                            2013             N/A             4.3             3.9
Occasional......................................            2011             1.4             1.9             N/A
                                                            2012             1.5             1.8             1.4
                                                            2013             N/A             1.8             1.6
----------------------------------------------------------------------------------------------------------------

     (iii) If a vessel has unused broken trip compensation trip(s), as 
specified in Sec.  648.60(c), when Closed Area I, Closed Area II, and/
or Nantucket Lightship Access Areas close due to the yellowtail 
flounder bycatch TAC, it will be issued additional open area DAS in 
proportion to the unharvested possession limit. For example, if a full-
time vessel had an unused 9,000-lb (4,082-kg) Nantucket Lightship 
Access Area compensation trip (half of the possession limit) at the 
time of a Nantucket Lightship Access Area yellowtail flounder bycatch 
TAC closure in FY 2012, the vessel will be allocated 2.15 DAS (half of 
4.3 DAS).
* * * * *
    (c) Adjustments in annual DAS allocations. Annual DAS allocations 
shall be established for 3 fishing years through biennial framework 
adjustments as specified in Sec.  648.55. If a biennial framework 
action is not undertaken by the Council and implemented by NMFS before 
the beginning of the third year of each biennial adjustment, the third-
year measures specified in the biennial framework adjustment shall 
remain in effect for the next fishing year. If a new biennial or other 
framework adjustment is not implemented by NMFS by the conclusion of 
the third year, the management measures from that third year would 
remain in place until a new action is implemented. The Council may also 
recommend adjustments to DAS allocations or other measures through a 
framework adjustment at any time.
    (d) End-of-year carry-over for open area DAS. With the exception of 
vessels that held a Confirmation of Permit History as described in 
Sec.  648.4(a)(2)(i)(J) for the entire fishing year preceding the 
carry-over year, limited access vessels that have unused open area DAS 
on the last day of February of any year may carry over a maximum of 10 
DAS, not to exceed the total open area DAS allocation by permit 
category, into the next year. DAS carried over into the next fishing 
year may only be used in open areas. Carry-over DAS are accounted for 
in setting the ACT for the limited access fleet, as specified in 
paragraph (a)(3)(ii) of this section. Therefore, if carry-over DAS 
result or contribute to an overage of the ACL, the limited access fleet 
AM specified in paragraph (b)(4)(ii) of this section would still apply, 
provided the AM exception specified in paragraph (b)(4)(iii) of this 
section is not invoked.
* * * * *
    (g) Set-asides for observer coverage. (1) To help defray the cost 
of carrying an observer, 1 percent of the ABC/ACL specified in 
paragraph (a)(1) of this section shall be set aside to be used by 
vessels that are assigned to take an at-sea observer on a trip. The 
total TAC for observer set aside is 273 mt in fishing year 2011, 290 mt 
in fishing year 2012, and 287 mt in fishing year 2013. This 1 percent 
is divided proportionally into access areas and open areas, as 
specified in Sec.  648.60(d)(1) and paragraph (g)(2) of this section, 
respectively. The total observer set-aside TAC specified for fishing 
year 2013 is a default allocation and is subject to change through a 
future framework adjustment
    (2) DAS set-aside for observer coverage. For vessels assigned to 
take an at-sea observer on a trip other than an Access Area Program 
trip, the open-area observer set-aside TACs are 139 mt, 161 mt, and 136 
mt for fishing years 2011, 2012, and 2013, respectively. The DAS set-
aside shall be determined by dividing these amounts by the LPUE 
specified in paragraph (b)(1)(i) of this section for each specific 
fishing year. The DAS set-aside for observer coverage is 137 DAS for 
the 2011 fishing year, 133 DAS for the 2012 fishing year, and 112 DAS 
for the 2013 fishing year. A vessel carrying an observer shall be 
compensated with reduced DAS accrual rates for each trip on which the 
vessel carries an observer. For each DAS that a vessel fishes for 
scallops with an observer on board, the DAS shall be charged at a 
reduced rate, based on an adjustment factor determined by the Regional 
Administrator on an annual basis, dependent on the cost of observers, 
catch rates, and amount of available DAS set-aside. The Regional 
Administrator shall notify vessel owners of the cost of observers and 
the DAS adjustment factor through a permit holder letter issued prior 
to the start of each fishing year. This DAS adjustment factor may also 
be changed during the fishing year if fishery conditions warrant such a 
change. The number of DAS that are deducted from each trip based on the 
adjustment factor shall be deducted from the observer DAS set-aside 
amount in the applicable fishing year. Utilization of the DAS set-aside 
shall be on a first-come, first-served basis. When the DAS set-aside 
for observer coverage has been utilized, vessel owners shall be 
notified that no additional DAS remain available to offset the cost of 
carrying observers. The obligation to carry and pay for an observer 
shall not be waived if set-aside is not available.
    (h) * * *
    (2) * * *
    (iii) Contribution percentage. A vessel's contribution percentage 
shall be determined by dividing its contribution factor by the sum of 
the contribution factors of all vessels issued an IFQ scallop permit. 
Continuing the example in paragraph (h)(1)(ii)(D) of this section, the 
sum of the contribution factors for 380 IFQ scallop vessels is 
estimated for the purpose of this example to be 4.18 million lb (1,896 
mt). The contribution percentage of the above vessel is 1.45 percent 
(60,687 lb (27,527 kg)/4.18 million lb (1,896 mt) = 1.45 percent). The 
contribution percentage for a vessel that is issued an IFQ scallop 
permit and that has permanently transferred all of its IFQ to another 
IFQ vessel, as

[[Page 23955]]

specified in paragraph (h)(5)(ii) of this section, shall be equal to 0 
percent.
* * * * *
    (v) End-of-year carry-over for IFQ. (A) With the exception of 
vessels that held a confirmation of permit history as described in 
Sec.  648.4(a)(2)(ii)(L) for the entire fishing year preceding the 
carry-over year, LAGC IFQ vessels that have unused IFQ on the last day 
of February of any year may carry over up to 15 percent of the vessel's 
original IFQ and transferred (either temporary or permanent) IFQ into 
the next fishing year. For example, a vessel with a 10,000-lb (4,536-
kg) IFQ and 5,000-lb (2,268-kg) of leased IFQ may carry over 2,250 lb 
(1,020 kg) of IFQ (i.e., 15 percent of 15,000 lb (6,804 kg)) into the 
next fishing year if it landed 12,750 lb (5,783 kg) (i.e., 85 percent 
of 15,000 lb (6,804 kg)) of scallops or less in the preceding fishing 
year. Using the same IFQ values from the example, if the vessel landed 
14,000 lb (6,350 kg) of scallops, it could carry over 1,000 lb (454 kg) 
of scallops into the next fishing year.
    (B) For accounting purposes, the combined total of all vessels' IFQ 
carry-over shall be added to the LAGC IFQ fleet's applicable ACL for 
the carry-over year. Any IFQ carried over that is landed in the carry-
over fishing year shall be counted against the ACL specified in 
paragraph (a)(4)(i) of this section, as increased by the total carry-
over for all LAGC IFQ vessels, as specified in this paragraph 
(h)(2)(v)(B).
    (vi) AM for the IFQ fleet. If a vessel exceeds its IFQ, including 
all temporarily and permanently transferred IFQ, in a fishing year, the 
amount of landings in excess of the vessel's IFQ, including all 
temporarily and permanently transferred IFQ, shall be deducted from the 
vessel's IFQ as soon as possible in the fishing year following the 
fishing year in which the vessel exceeded its IFQ. If the AM takes 
effect, and an IFQ vessel lands more scallops than allocated after the 
AM is applied, the vessel shall have the IFQ landed in excess of its 
IFQ after applying the AM deducted from its IFQ in the subsequent 
fishing year. For example, a vessel with an initial IFQ of 1,000 lb 
(453.6 kg) in 2010 landed 1,200 lb (544.3 kg) of scallops in 2010, and 
is initially allocated 1,300 lb (589.7 kg) of scallops in 2011. That 
vessel would be subject to an IFQ reduction equal to 200 lb (90.7 kg) 
to account for the 200 lb (90.7 kg) overage in 2010. If that vessel 
lands 1,300 lb (589.7 kg) of scallops in 2011 prior to application of 
the 200 lb (90.7 kg) deduction, the vessel would be subject to a 
deduction of 200 lb (90.7 kg) in 2012. For vessels involved in a 
temporary IFQ transfer, the entire deduction shall apply to the vessel 
that acquired IFQ, not the transferring vessel. A vessel that has an 
overage that exceeds its IFQ in the subsequent fishing year shall be 
subject to an IFQ reduction in subsequent years until the overage is 
paid back. For example, a vessel with an IFQ of 1,000 lb (454 kg) in 
each year over a 3-year period that harvests 2,500 lb (1,134 kg) of 
scallops the first year would have a 1,500-lb (680-kg) IFQ deduction, 
so that it would have zero pounds to harvest in year 2, and 500 lb (227 
kg) to harvest in year 3. A vessel that has a ``negative'' IFQ balance, 
as described in the example, could lease or transfer IFQ to balance the 
IFQ, provided there are no sanctions or other enforcement penalties 
that would prohibit the vessel from acquiring IFQ.
    (3) * * *
    (i) * * *
    (A) Unless otherwise specified in paragraphs (h)(3)(i)(B) and (C) 
of this section, a vessel issued an IFQ scallop permit or confirmation 
of permit history shall not be issued more than 2.5 percent of the TAC 
allocated to the IFQ scallop vessels as described in paragraphs 
(a)(3)(ii) and (iii) of this section.
    (B) A vessel may be initially issued more than 2.5 percent of the 
TAC allocated to the IFQ scallop vessels as described in paragraphs 
(a)(3)(ii) and (iii) of this section, if the initial determination of 
its contribution factor specified in accordance with Sec.  
648.4(a)(2)(ii)(E) and paragraph (h)(2)(ii) of this section, results in 
an IFQ that exceeds 2.5 percent of the TAC allocated to the IFQ scallop 
vessels as described in paragraphs (a)(3)(ii) and (iii) of this 
section. A vessel that is allocated an IFQ that exceeds 2.5 percent of 
the TAC allocated to the IFQ scallop vessels as described in paragraphs 
(a)(3)(ii) and (iii) of this section, in accordance with this paragraph 
(h)(3)(i)(B), may not receive IFQ through an IFQ transfer, as specified 
in paragraph (h)(5) of this section.
    (C) A vessel initially issued a 2008 IFQ scallop permit or 
confirmation of permit history, or that was issued or renewed a limited 
access scallop permit or confirmation of permit history for a vessel in 
2009 and thereafter, in compliance with the ownership restrictions in 
paragraph (h)(3)(i)(A) of this section, is eligible to renew such 
permits(s) and/or confirmation(s) of permit history, regardless of 
whether the renewal of the permit or confirmations of permit history 
will result in the 2.5-percent IFQ cap restriction being exceeded.
* * * * *
    (4) IFQ cost recovery. A fee, not to exceed 3 percent of the ex-
vessel value of IFQ scallops harvested, shall be collected to recover 
the costs associated with management, data collection, and enforcement 
of the IFQ program. The owner of a vessel issued an IFQ scallop permit 
and subject to the IFQ program specified in this paragraph (h)(4), 
shall be responsible for paying the fee as specified by NMFS in this 
paragraph (h)(4). An IFQ scallop vessel shall incur a cost recovery fee 
liability for every landing of IFQ scallops. The IFQ scallop permit 
holder shall be responsible for collecting the fee for all of its 
vessels' IFQ scallop landings, and shall be responsible for submitting 
this payment to NMFS once per year. The cost recovery fee for all 
landings, regardless of ownership changes throughout the fishing year, 
shall be the responsibility of the official owner of the vessel, as 
recorded in the vessel permit or confirmation of permit history file, 
at the time the bill is sent.
* * * * *
    (5) * * *
    (ii) Permanent IFQ transfers. Subject to the restrictions in 
paragraph (h)(5)(iii) of this section, the owner of an IFQ scallop 
vessel not issued a limited access scallop permit may transfer IFQ 
permanently to or from another IFQ scallop vessel. Any such transfer 
cannot be limited in duration and is permanent, unless the IFQ is 
subsequently transferred to another IFQ scallop vessel, other than the 
originating IFQ scallop vessel, in a subsequent fishing year. If a 
vessel permanently transfers its entire IFQ to another vessel, the LAGC 
IFQ scallop permit shall remain valid on the transferring vessel, 
unless the owner of the transferring vessel cancels the IFQ scallop 
permit. Such cancellation shall be considered voluntary relinquishment 
of the IFQ permit, and the vessel shall be ineligible for an IFQ 
scallop permit unless it replaces another vessel that was issued an IFQ 
scallop permit. The Regional Administrator has final approval authority 
for all IFQ transfer requests.
    (iii) IFQ transfer restrictions. The owner of an IFQ scallop vessel 
not issued a limited access scallop permit that has fished under its 
IFQ in a fishing year may not transfer that vessel's IFQ to another IFQ 
scallop vessel in the same fishing year. Requests for IFQ transfers 
cannot be less than 100 lb (46.4 kg), unless that value reflects the 
total IFQ amount remaining on the transferor's vessel, or the entire 
IFQ

[[Page 23956]]

allocation. IFQ can be transferred only once during a given fishing 
year. A transfer of an IFQ may not result in the sum of the IFQs on the 
receiving vessel exceeding 2.5 percent of the TAC allocated to IFQ 
scallop vessels. A transfer of an IFQ, whether temporary or permanent, 
may not result in the transferee having a total ownership of, or 
interest in, general category scallop allocation that exceeds 5 percent 
of the TAC allocated to IFQ scallop vessels. Limited access scallop 
vessels that are also issued an IFQ scallop permit may not transfer to 
or receive IFQ from another IFQ scallop vessel.
    (iv) Application for an IFQ transfer. The owners of vessels 
applying for a transfer of IFQ must submit a completed application form 
obtained from the Regional Administrator. The application must be 
signed by both parties (transferor and transferee) involved in the 
transfer of the IFQ, and must be submitted to the NMFS Northeast 
Regional Office at least 30 days before the date on which the 
applicants desire to have the IFQ effective on the receiving vessel. 
The Regional Administrator shall notify the applicants of any 
deficiency in the application pursuant to this section. Applications 
may be submitted at any time during the scallop fishing year, provided 
the vessel transferring the IFQ to another vessel has not utilized any 
of its own IFQ in that fishing year. Applications for temporary 
transfers received less than 45 days prior to the end of the fishing 
year may not be processed in time for a vessel to utilize the 
transferred IFQ prior to the expiration of the fishing year for which 
the IFQ transfer, if approved, would be effective.
    (A) Application information requirements. An application to 
transfer IFQ must contain at least the following information: 
Transferor's name, vessel name, permit number, and official number or 
state registration number; transferee's name, vessel name, permit 
number, and official number or state registration number; total price 
paid for purchased IFQ; signatures of transferor and transferee; and 
date the form was completed. In addition, applications to transfer IFQ 
must indicate the amount, in pounds, of the IFQ allocation transfer, 
which may not be less than 100 lb (45 kg) unless that value reflects 
the total IFQ amount remaining on the transferor's vessel, or the 
entire IFQ allocation. Information obtained from the transfer 
application will be held confidential, and will be used only in 
summarized form for management of the fishery.
    (B) Approval of IFQ transfer applications. Unless an application to 
transfer IFQ is denied according to paragraph (h)(5)(iii)(C) of this 
section, the Regional Administrator shall issue confirmation of 
application approval to both parties involved in the transfer within 30 
days of receipt of an application.
    (C) Denial of transfer application. The Regional Administrator may 
reject an application to transfer IFQ for any of the following reasons: 
The application is incomplete; the transferor or transferee does not 
possess a valid limited access general category permit; the 
transferor's vessel has fished under its IFQ prior to the completion of 
the transfer request; the transferor's or transferee's vessel or IFQ 
scallop permit has been sanctioned, pursuant to a final administrative 
decision or settlement of an enforcement proceeding; the transfer will 
result in the transferee's vessel having an allocation that exceeds 2.5 
percent of the TAC allocated to IFQ scallop vessels; the transfer will 
result in the transferee having a total ownership of, or interest in, a 
general category scallop allocation that exceeds 5 percent of the TAC 
allocated to IFQ scallop vessels; or any other failure to meet the 
requirements of the regulations in 50 CFR part 648. Upon denial of an 
application to transfer IFQ, the Regional Administrator shall send a 
letter to the applicants describing the reason(s) for the rejection. 
The decision by the Regional Administrator is the final agency 
decision, and there is no opportunity to appeal the Regional 
Administrator's decision. An application that was denied can be 
resubmitted if the discrepancy(ies) that resulted in denial are 
resolved.
* * * * *


Sec.  648.58  [Amended]

    4. In Sec.  648.58, paragraph (a) is removed and reserved.
    5. In Sec.  648.59:
    a. Paragraphs (a)(4) and (c)(1) are removed and reserved;
    b. The introductory text in paragraphs (b) and (c) are revised; and
    c. Paragraphs (a)(1), (a)(3), (b)(1), (b)(2), (b)(5)(i), 
(b)(5)(ii)(A), (b)(5)(ii)(B), (c)(2), (c)(5)(i), (c)(5)(ii)(A), (d)(1), 
(d)(2), (d)(5)(i), (d)(5)(ii)(A), (d)(5)(ii)(B), and (e) are revised to 
read as follows.


Sec.  648.59  Sea Scallop Access Areas.

    (a) * * *
    (1) From March 1, 2011, through February 28, 2014 (i.e., fishing 
years 2011 through 2013), a vessel issued a scallop permit may fish 
for, possess, or land scallops in or from the area known as the 
Delmarva Sea Scallop Access Area, described in paragraph (a)(2) of this 
section, only if the vessel is participating in, and complies with the 
requirements of, the area access program described in Sec.  648.60. The 
Delmarva Scallop Access Area schedule and TACs specified in paragraph 
(a)(3) of this section for fishing year 2013 are default measures and 
subject to change through a future framework adjustment.
* * * * *
    (3) Number of trips--(i) Limited access vessels. Based on its 
permit category, a vessel issued a limited access scallop permit may 
fish no more than the maximum number of trips in the Delmarva Access 
Area as specified in Sec.  648.60(a)(3)(i), unless the vessel owner has 
made an exchange with another vessel owner whereby the vessel gains a 
Delmarva Access Area trip and gives up a trip into another Sea Scallop 
Access Area, as specified in Sec.  648.60(a)(3)(ii), or unless the 
vessel is taking a compensation trip for a prior Delmarva Access Area 
trip that was terminated early, as specified in Sec.  648.60(c). 
Additionally, limited access full-time and part-time scallop vessels 
are restricted in the number of trips that may be taken from June 15 
through October 31, as specified in Sec.  648.60(a)(3)(i)(B)(4) and 
(a)(3)(i)(C)(4). The number of trips allocated to limited access 
vessels in the Delmarva Access Area shall be based on the TAC for the 
access area, which shall be determined through the annual framework 
process and specified in paragraph (a)(5)(i) of this section. The 
Delmarva Access Area scallop TACs for limited access scallop vessels 
are 5,886,000 lb (2,670 mt) in fishing year 2011, and 2,943,000 lb 
(1,335 mt) in fishing years 2012 and 2013.
    (ii) LAGC IFQ scallop vessels.--(A) The percentage of the Delmarva 
Access Area TAC to be allocated to LAGC IFQ scallop vessels shall be 
specified in paragraph (a)(4)(ii)(A) of this section through the 
framework adjustment process, and shall determine the number of trips 
allocated to LAGC IFQ scallop vessels as specified in paragraph 
(a)(4)(ii)(B) of this section. LAGC IFQ vessels will be allocated 
355,900 lb (161 mt) in fishing year 2011, 177,490 lb (81 mt) in fishing 
year 2012, and 178,600 lb (81 mt) in fishing year 2013, which represent 
5.5 percent of the Delmarva Access Area TACs for each fishing year. 
This TAC applies to both LAGC IFQ vessels and limited access vessels 
with LAGC IFQ permits that are fishing under the provisions of the LAGC 
IFQ permit.
    (B) Based on the TAC specified in paragraph (a)(4)(ii)(A) of this 
section,

[[Page 23957]]

LAGC scallop vessels are allocated 593 trips in fishing year 2011, 296 
trips in fishing year 2012, and 298 trips in fishing year 2013 to the 
Delmarva Access Area. This fleet-wide trip allocation applies to both 
LAGC IFQ vessels and limited access vessels with LAGC IFQ permits that 
are fishing under the provisions of the LAGC IFQ permit. The Regional 
Administrator shall notify all LAGC IFQ scallop vessels of the date 
when the total number of trips have been, or are projected to be, taken 
by providing notification in the Federal Register, in accordance with 
Sec.  648.60(g)(4). An LAGC IFQ scallop vessel may not fish for, 
possess, or land sea scallops in or from the Delmarva Access Area, or 
enter the Delmarva Access Area on a declared LAGC IFQ scallop trip 
after the effective date published in the Federal Register, unless 
transiting pursuant to paragraph (f) of this section.
    (1) If the fleet-wide Delmarva Access Area trip allocation 
implemented by Framework 22 is exceeded in the 2011 fishing year, the 
fleet-wide Delmarva Access Area trip allocation in fishing year 2012 
shall be reduced by the number of trips taken in excess of the amount 
specified in paragraph (a)(3)(ii)(B) of this section.
    (2) [Reserved]
    (C) Scallops landed by each LAGC IFQ vessel on a Delmarva Access 
Area trip shall be counted against that vessel's IFQ.
* * * * *
    (b) Closed Area I Access Area--(1) From March 1, 2013, through 
February 28, 2014 (i.e., fishing year 2013), vessels issued scallop 
permits may not fish for, possess, or land scallops in or from, the 
area known as the Closed Area I Access Area, described in paragraph 
(b)(3) of this section, unless transiting pursuant to paragraph (f) of 
this section. Vessels issued both a NE Multispecies permit and an LAGC 
scallop permit may fish in an approved SAP under Sec.  648.85 and under 
multispecies DAS in the scallop access area, provided they comply with 
restrictions in paragraph (b)(5)(ii)(C) of this section. The Closed 
Area I Sea Scallop Access Area schedule and TACs specified in paragraph 
(b)(5) of this section for fishing year 2013 are default measures and 
subject to change through a future framework adjustment.
    (2) From March 1, 2011, through February 28, 2013 (i.e., fishing 
years 2011 and 2012), subject to the seasonal restrictions specified in 
paragraph (b)(4) of this section, a vessel issued a scallop permit may 
fish for, possess, and land scallops in or from the area known as the 
Closed Area I Access Area, described in paragraph (b)(3) of this 
section, only if the vessel is participating in, and complies with the 
requirements of, the area access program described in Sec.  648.60.
* * * * *
    (5) * * *
    (i) Limited access vessels. Based on its permit category, a vessel 
issued a limited access scallop permit may fish no more than the 
maximum number of trips in the Closed Area I Access Area, unless the 
vessel owner has made an exchange with another vessel owner whereby the 
vessel gains a Closed Area I Access Area trip and gives up a trip into 
another Sea Scallop Access Area, as specified in Sec.  
648.60(a)(3)(ii), or unless the vessel is taking a compensation trip 
for a prior Closed Area I Access Area trip that was terminated early, 
as specified in Sec.  648.60(c). The number of trips allocated to 
limited access vessels in the Closed Area I Access Area shall be based 
on the TAC for the access area, which will be determined through the 
annual framework process and specified in paragraph (c)(5)(i) of this 
section. The number of trips allocated to limited access vessels in the 
Closed Area I Access Area shall be based on the TAC for the access 
area, which shall be determined through the annual framework process 
and specified in this paragraph (b)(5)(i). The Closed Area I Access 
Area scallop TAC for limited access scallop vessels is 8,829,000 (4,005 
mt) in fishing year 2011, and 2,943,000 lb (1,335 mt) in fishing year 
2012. Closed Area I Access Area is closed to limited access vessels for 
the 2013 fishing year.
    (ii) * * *
    (A) The percentage of the Closed Area I Access Area TAC to be 
allocated to LAGC scallop vessels shall be specified through the 
framework adjustment process and shall determine the number of trips 
allocated to LAGC scallop vessels as specified in paragraph 
(b)(5)(ii)(B) of this section. The TAC applies to both LAGC IFQ vessels 
and limited access vessels with LAGC IFQ permits that are fishing under 
the provisions of the LAGC IFQ permit. LAGC IFQ vessels will be 
allocated 533,850 lb (242 mt) in fishing year 2011, and 177,490 lb (81 
mt) in fishing year 2012, which represent 5.5 percent of the Closed 
Area I Access Area TACs for each fishing year. This TAC applies to both 
LAGC IFQ vessels and limited access vessels with LAGC IFQ permits that 
are fishing under the provisions of the LAGC IFQ permit. The Closed 
Area I Access Area will be closed to LAGC IFQ vessels in fishing year 
2013.
    (B) Based on the TACs specified in paragraph (b)(5)(ii)(A) of this 
section, LAGC IFQ vessels are allocated a total of 890 trips in fishing 
year 2011, and 296 trips in fishing year 2012 in the Closed Area I 
Access Area. No LAGC IFQ trips will be allocated in Closed Area I 
Access Area in fishing year 2013. The Regional Administrator shall 
notify all LAGC scallop vessels of the date when the maximum number of 
allowed trips for the applicable fishing year have been, or are 
projected to be, taken by providing notification in the Federal 
Register, in accordance with Sec.  648.60(g)(4). Except as provided in 
paragraph (b)(5)(ii)(C) of this section, and subject to the seasonal 
restrictions specified in paragraph (b)(4) of this section, an LAGC 
scallop vessel may not fish for, possess, or land sea scallops in or 
from the Closed Area I Access Area, or enter the Closed Area I Access 
Area on a declared LAGC scallop trip after the effective date published 
in the Federal Register, unless transiting pursuant to paragraph (f) of 
this section.
* * * * *
    (c) * * *
    (2) From March 1, 2011, through February 28, 2014 (i.e., fishing 
years 2011 through 2013), subject to the seasonal restrictions 
specified in paragraph (c)(4) of this section, a vessel issued a 
scallop permit may fish for, possess, or land scallops in or from the 
area known as the Closed Area II Sea Scallop Access Area, described in 
paragraph (c)(3) of this section, only if the vessel is participating 
in, and complies with the requirements of, the area access program 
described in Sec.  648.60. The Closed Area II Sea Scallop Access Area 
schedule and TACs specified in paragraph (c)(5) of this section for 
fishing year 2013 are default measures and subject to change through a 
future framework adjustment.
* * * * *
    (5) * * *
    (i) Limited access vessels. Based on its permit category, a vessel 
issued a limited access scallop permit may fish no more than the 
maximum number of trips in the Closed Area II Access Area, unless the 
vessel owner has made an exchange with another vessel owner whereby the 
vessel gains a Closed Area II Access Area trip and gives up a trip into 
another Sea Scallop Access Area, as specified in Sec.  
648.60(a)(3)(ii), or unless the vessel is taking a compensation trip 
for a prior Closed Area II Access Area trip that was terminated early, 
as specified in Sec.  648.60(c). The number of trips allocated to 
limited access vessels in the Closed Area II Access Area shall be based 
on the TAC for the access area, which will be determined through the 
annual framework process and specified

[[Page 23958]]

in this paragraph (c)(5)(i). The Closed Area II Access Area scallop 
TACs for limited access scallop vessels are 2,943,000 lb (1,335 mt) in 
fishing year 2011 and 5,886,000 lb (2,670 mt) in fishing years 2012 and 
2013.
    (ii) * * *
    (A) The percentage of the total Closed Area II Access Area TAC to 
be allocated to LAGC IFQ scallop vessels shall be specified through the 
framework adjustment process and shall determine the number of trips 
allocated to IFQ LAGC scallop vessels as specified in paragraph 
(c)(5)(ii)(B) of this section. The TAC applies to both LAGC IFQ vessels 
and limited access vessels with LAGC IFQ permits. The Closed Area II 
Access Area is closed to LAGC IFQ vessels in the 2011 through 2013 
fishing years.
* * * * *
    (d) * * *
    (1) From March 1, 2011, through February 28, 2012 (i.e., fishing 
year 2011), vessels issued scallop permits may not fish for, possess, 
or land scallops in or from the area known as the Nantucket Lightship 
Access Area, described in paragraph (d)(3) of this section, unless 
transiting pursuant to paragraph (f) of this section. Vessels issued 
both a NE multispecies permit and an LAGC scallop permit may fish in an 
approved SAP under Sec.  648.85 and under multispecies DAS in the 
scallop access area, provided they comply with restrictions in 
paragraph (d)(5)(ii)(C) of this section.
    (2) From March 1, 2012, through February 28, 2014 (i.e., fishing 
years 2012 and 2013), subject to the seasonal restrictions specified in 
paragraph (d)(4) of this section, a vessel issued a scallop permit may 
fish for, possess, or land scallops in or from the area known as the 
Nantucket Lightship Sea Scallop Access Area, described in paragraph 
(d)(3) of this section, only if the vessel is participating in, and 
complies with the requirements of, the area access program described in 
Sec.  648.60. The Nantucket Lightship Sea Scallop Access Area schedule 
and TACs specified in paragraph (d)(5) of this section for fishing year 
2013 are default measures and subject to change through a future 
framework adjustment.
* * * * *
    (5) * * *
    (i) Limited access vessels. Based on its permit category, a vessel 
issued a limited access scallop permit may fish no more than the 
maximum number of trips in the Nantucket Lightship Access Area, unless 
the vessel owner has made an exchange with another vessel owner whereby 
the vessel gains a Nantucket Lightship Access Area trip and gives up a 
trip into another Sea Scallop Access Area, as specified in Sec.  
648.60(a)(3)(ii), or unless the vessel is taking a compensation trip 
for a prior Nantucket Lightship Access Area trip that was terminated 
early, as specified in Sec.  648.60(c). The number of trips allocated 
to limited access vessels in the Nantucket Lightship Access Area shall 
be based on the TAC for the access area. The Nantucket Lightship Access 
Area scallop TACs for limited access scallop vessels are 2,943,000 lb 
(1,335 mt) in fishing year 2012, and 5,886,000 lb (2,670 mt) in fishing 
year 2013. The Nantucket Lightship Access Area will be closed to 
limited access vessels in fishing year 2011.
    (A) A limited access vessel that uses a Nantucket Lightship Access 
Area trip in the 2011 fishing year prior to the implementation of 
Framework 22 shall have those pounds landed during that trip deducted 
from an access area trip allocation in fishing year 2012.
    (B) [Reserved]
    (ii) * * *
    (A) The percentage of the Nantucket Lightship Access Area TAC to be 
allocated to LAGC IFQ scallop vessels shall be specified through the 
framework adjustment process and shall determine the number of trips 
allocated to LAGC IFQ scallop vessels as specified in paragraph 
(d)(5)(ii)(B) of this section. The Nantucket Lightship Access Area will 
be closed to LAGC IFQ vessels in fishing year 2011. LAGC IFQ vessels 
are allocated 177,490 lb (81 mt) in fishing year 2012 and 357,200 lb 
(162 mt) in fishing year 2013, which represent 5.5 percent of the 
Nantucket Lightship Access Area TAC for each fishing year. The TAC 
applies to both LAGC IFQ vessels and limited access vessels with LAGC 
IFQ permits that are fishing under the provisions of the LAGC IFQ 
permit.
    (1) If LAGC IFQ vessels declare a trip into the Nantucket Lightship 
Access Area in the 2011 fishing year prior to the implementation of 
Framework 22 and the closure of the Nantucket Lightship Access Area in 
fishing year 2011, the number of LAGC IFQ trips that have been declared 
on which scallops have been landed shall be deducted from the total 
number of LAGC IFQ fleet-wide trips allocated in the Nantucket 
Lightship Access Area in fishing year 2012.
    (2) [Reserved]
    (B) Based on the TAC specified in paragraph (d)(5)(ii)(A) of this 
section, LAGC scallop vessels are allocated 296 trips in fishing year 
2012, and 595 trips in fishing year 2013 to the Nantucket Lightship 
Access Area. This fleet-wide trip allocation applies to both LAGC IFQ 
vessels and limited access vessels with LAGC IFQ permits that are 
fishing under the provisions of the LAGC IFQ permit. The Regional 
Administrator shall notify all LAGC IFQ scallop vessels of the date 
when the total number of trips have been, or are projected to be, taken 
by providing notification in the Federal Register, in accordance with 
Sec.  648.60(g)(4). Except as provided in paragraph (d)(5)(ii)(C) of 
this section, an LAGC IFQ scallop vessel may not fish for, possess, or 
land sea scallops in or from the Nantucket Lightship Access Area, or 
enter the Nantucket Lightship Access Area on a declared LAGC IFQ 
scallop trip after the effective date published in the Federal 
Register, unless transiting pursuant to paragraph (f) of this section.
* * * * *
    (e) Hudson Canyon Sea Scallop Access Area. (1) From March 1, 2011, 
through February 28, 2014 (i.e., fishing years 2011 through 2013), a 
vessel issued a scallop permit may fish for, possess, or land scallops 
in or from the area known as the Hudson Canyon Sea Scallop Access Area, 
described in paragraph (e)(2) of this section, only if the vessel is 
participating in, and complies with the requirements of, the area 
access program described in Sec.  648.60. The Hudson Canyon Sea Scallop 
Access Area schedule and TACs specified in paragraph (e)(4) of this 
section for fishing year 2013 are default measures and subject to 
change through a future framework adjustment.
    (2) The Hudson Canyon Sea Scallop Access Area is defined by 
straight lines connecting the following points in the order stated 
(copies of a chart depicting this area are available from the Regional 
Administrator upon request):

------------------------------------------------------------------------
             Point                     Latitude            Longitude
------------------------------------------------------------------------
H1.............................  39[deg]30[min] N.    73[deg]10[min] W.
H2.............................  39[deg]30[min] N.    72[deg]30[min] W.
H3.............................  38[deg]30[min] N.    73[deg]30[min] W.
H4.............................  38[deg]50[min] N.    73[deg]30[min] W.
H5.............................  38[deg]50[min] N.    73[deg]42[min] W.
H1.............................  39[deg]30[min] N.    73[deg]10[min] W.
------------------------------------------------------------------------

    (3) [Reserved]
    (4) Number of trips--(i) Limited access vessels. Based on its 
permit category, a vessel issued a limited access scallop permit may 
fish no more than the maximum number of trips in the Hudson Canyon Sea 
Scallop Access Area, unless the vessel owner has made an exchange with 
another vessel owner whereby the vessel gains a Hudson Canyon Sea 
Scallop Access Area trip and gives up a trip into another Sea Scallop 
Access Area, as specified in

[[Page 23959]]

Sec.  648.60(a)(3)(ii), or unless the vessel is taking a compensation 
trip for a prior Hudson Canyon Access Area trip that was terminated 
early, as specified in Sec.  648.60(c). Additionally, limited access 
full-time and part-time scallop vessels are restricted in the number of 
trips that may be taken from June 15 through October 31, as specified 
in Sec.  648.60(a)(3)(i)(B)(4) or Sec.  648.60(a)(3)(i)(C)(4). The 
Hudson Canyon Access Area scallop TACs for limited access scallop 
vessels are 5,886,000 lb (2,670 mt) in fishing year 2011, and 8,829,000 
lb (4,005 mt) in fishing years 2012 and 2013.
    (ii) LAGC IFQ scallop vessels.--(A) The percentage of the Hudson 
Canyon Access Area TAC to be allocated to LAGC scallop vessels shall be 
specified through the framework adjustment process and shall determine 
the number of trips allocated to LAGC IFQ scallop vessels as specified 
in paragraph (e)(4)(ii)(B) of this section. LAGC IFQ vessels shall be 
allocated 355,900 lb (161 mt) in fishing year 2011, 532,460 lb (242 mt) 
in fishing year 2012, and 535,800 lb (243 mt) in fishing year 2013, 
which is 5.5 percent of the Hudson Canyon Access Area TAC for each 
fishing year. The TAC applies to both LAGC IFQ vessels and limited 
access vessels with LAGC IFQ permits that are fishing under the 
provisions of the LAGC IFQ permit.
    (B) Based on the TACs specified in paragraph (e)(4)(ii)(A) of this 
section, LAGC IFQ vessels are allocated a total of 593, 887, and 893 
trips in the Hudson Canyon Access Area in fishing years 2011, 2012, and 
2013, respectively. This fleet-wide trip allocation applies to both 
LAGC IFQ vessels and limited access vessels with LAGC IFQ permits that 
are fishing under the provisions of the LAGC IFQ permit. The Regional 
Administrator shall notify all LAGC IFQ scallop vessels of the date 
when the maximum number of allowed trips have been, or are projected to 
be taken by providing notification in the Federal Register, in 
accordance with Sec.  648.60(g)(4). An LAGC IFQ scallop vessel may not 
fish for, possess, or land sea scallops in or from the Hudson Canyon 
Access Area, or enter the Hudson Canyon Access Area on a declared LAGC 
IFQ scallop trip after the effective date published in the Federal 
Register, unless transiting pursuant to paragraph (f) of this section.
    (C) Scallops landed by each LAGC IFQ vessel on a Hudson Canyon 
Access Area trip shall count against that vessel's IFQ.
* * * * *
    6. In Sec.  648.60, paragraphs (a)(3)(i), (a)(5)(i), (c)(5)(ii)(A), 
(c)(5)(v), (d)(1), the heading of paragraph (e), the introductory text 
of paragraph (e)(1), and paragraphs (e)(1)(ii), (e)(1)(iii), and (g)(1) 
are revised and paragraph (e)(1)(ii) is added to read as follows:


Sec.  648.60  Sea scallop area access program requirements.

    (a) * * *
    (3) * * *
    (i) Limited access vessel trips. (A) Except as provided in 
paragraph (c) of this section, paragraphs (a)(3)(i)(B) through (E) of 
this section specify the total number of trips that a limited access 
scallop vessel may take into Sea Scallop Access Areas during applicable 
seasons specified in Sec.  648.59. The number of trips per vessel in 
any one Sea Scallop Access Area may not exceed the maximum number of 
trips allocated for such Sea Scallop Access Area as specified in Sec.  
648.59, unless the vessel owner has exchanged a trip with another 
vessel owner for an additional Sea Scallop Access Area trip, as 
specified in paragraph (a)(3)(ii) of this section, or has been 
allocated a compensation trip pursuant to paragraph (c) of this 
section.
    (B) Full-time scallop vessels. --(1) In fishing year 2011, each 
full-time vessel will have a total of four access area trips and is 
subject to the following seasonal trip restrictions specified in 
paragraph (a)(3)(i)(B)(4) of this section. All full-time scallop 
vessels will be allocated one trip in the Delmarva Access Area, one 
trip into the Hudson Canyon Access Area, and one trip into the Closed 
Area I Access Area. In addition, each vessel will receive either an 
additional trip into the Closed Area I Access Area or a trip into the 
Closed Area II Access Area. These allocations will be determined by the 
Regional Administrator through a random assignment and shall be made 
publically available on the Northeast Regional website prior to the 
start of the 2011 fishing year. The 2011 fishing year access area 
assignment will not be applicable to full-time vessels until the 
effective date of Framework 22 implementation. A full description of 
the random assignment process for FY 2011 is outlined in Section 2.4.2 
of Framework 22 to the Scallop Fishery Management Plan.
    (2) In fishing year 2012, each full-time vessel shall have a total 
of four access area trips and is subject to the following seasonal trip 
restrictions specified in paragraph (a)(3)(i)(B)(4) of this section. 
All full-time vessels shall receive one trip into the Closed Area II 
Access Area and one trip into the Hudson Canyon Access Area. Each 
vessel shall also receive an additional two access area trips that must 
be allocated in one of the following combinations: One trip in the 
Closed Area I Access Area and one trip in the Nantucket Lightship 
Access Area; one trip in the Closed Area I Access Area and one 
additional trip in the Hudson Canyon Access Area; one trip in the 
Closed Area I Access Area and one trip in the Delmarva Access Area; one 
trip in the Nantucket Lightship Access Area and an additional trip in 
the Hudson Canyon Access Area; one trip in the Nantucket Lightship 
Access Area and one trip in the Delmarva Access Area; or an additional 
trip in the Hudson Canyon Access Area and one in the Delmarva Access 
Area. These allocations shall be determined by the Regional 
Administrator through a random assignment and shall be made publically 
available prior to the start of the 2012 fishing year. A full 
description of the random assignment process for FY 2012 is outlined in 
Section 2.4.2 of Framework 22 to the Scallop Fishery Management Plan.
    (3) At the start of fishing year 2013, each full-time vessel shall 
have a total of four access area trips and are subject to the following 
seasonal trip restrictions specified in paragraph (a)(3)(i)(B)(4) of 
this section. The access area trip allocations for the 2013 fishing 
year are default allocations that are subject to change in a future 
framework adjustment. All full-time scallop vessels shall be allocated 
one trip in the Closed Area II Access Area, one trip in the Nantucket 
Lightship Access Area, and one trip in the Hudson Canyon Access Area. 
In addition, each vessel shall receive either an additional trip in the 
Hudson Canyon Access Area or in the Delmarva Access Area. These 
allocations shall be determined by the Regional Administrator through a 
random assignment and will be made publically available prior to the 
start of the 2013 fishing year. A full description of the random 
assignment process for FY 2013 is outlined in Section 2.4.2 of 
Framework 22 to the Scallop Fishery Management Plan.
    (4) A full-time scallop vessel may not fish for, possess, or retain 
more than a combined total of 18,000 lb (8,165 kg) of scallops during 
the period June 15 through October 31, the equivalent of one full trip 
possession limit specified in Sec.  648.60(a)(5)(i), during this time 
period from the Delmarva and Hudson Canyon Access Areas specified in 
Sec.  648.59(a) and (e). For example, a full-time vessel may possesses 
or land up to 18,000 lb (8,165 kg) from the Hudson Canyon Access Area, 
up to 18,000 lb (8,165 kg) from the Delmarva Access Area, or up to 
18,000 lb (8,165 kg)

[[Page 23960]]

combined from separate trips into each access area during June 15 
through October 31. The remaining access area trips may be taken during 
the remainder of the fishing year. These possession and landing 
restrictions does not include the additional possession allowance to 
defray the cost of carrying an observer as specified in Sec.  648.60(d) 
that occur during observed trips between June 15 through October 31. In 
addition, if the owner of a full-time vessel has exchanged a trip(s) 
with another vessel owner(s) so that the vessel has an allocation of 
four combined trips into the Delmarva and/or Hudson Canyon Access 
Areas, that vessel may not fish for, possess, or retain more than a 
combined total of 36,000 lb (16,329 kg) of scallops, the equivalent of 
two full trip possession limits specified in Sec.  648.60(a)(5)(i), 
during this time period from the Delmarva and/or Hudson Canyon Access 
Areas combined.
    (i) If, prior to the implementation of Framework 22, a full-time 
vessel with less than four total Mid-Atlantic access trips possesses or 
lands more than 18,000 lb (8,165 kg) from declared access area trips 
into the Delmarva and Hudson Canyon Access Areas during June 15 through 
October 31 in fishing year 2011, that vessel shall not declare an 
access area trip in fishing year 2012 in the Mid-Atlantic during June 
15 through October 31. Alternatively, a full-time vessel could account 
for the overage by exchanging trips with another vessel(s) so that it 
has an allocation of a total of four Mid-Atlantic trips and continue to 
fish up to a maximum of 36,000 lb (16,329 kg) (i.e., the equivalent of 
two full-time limited access trips) through October 31, 2011.
    (ii) [Reserved]
    (C) Part-time scallop vessels. (1) For the 2011 fishing year, a 
part-time scallop vessel is allocated two trips that may be distributed 
between access areas as follows: Two trips in the Closed Area I Access 
Area; one trip in the Closed Area I Access Area and one trip in the 
Closed Area II Access Area; one trip in the Closed Area I Access Area 
and one trip in the Hudson Canyon Access Area; one trip in the Closed 
Area I Access Area and one trip in the Delmarva Access Area; one trip 
in the Closed Area II Access Area and one trip in the Hudson Canyon 
Access Area; one trip in the Closed Area II Access Area and one trip in 
the Delmarva Access Area; or one trip in the Hudson Canyon Access Area 
and one trip in the Delmarva Access Area. Part-time vessels are subject 
to the seasonal trip restrictions specified in paragraph 
(a)(3)(i)(C)(4) of this section.
    (2) For the 2012 fishing year, a part-time scallop vessel is 
allocated two trips that may be distributed between access areas as 
follows: Two trips in the Hudson Canyon Access Area; one trip in the 
Closed Area I Access Area and one trip in the Nantucket Lightship 
Access Area; one trip in the Closed Area I Access Area and one trip in 
the Hudson Canyon Access Area; one trip in the Closed Area I Access 
Area and one trip in the Delmarva Access Area; one trip in the 
Nantucket Lightship Access Area and one trip in the Hudson Canyon 
Access Area; one trip in the Nantucket Lightship Access Area and one 
trip in the Delmarva Access Area; or one trip in the Hudson Canyon 
Access Area and one trip in the Delmarva Access Area. Part-time vessels 
are subject to the seasonal trip restrictions specified in paragraph 
(a)(3)(i)(C)(4) of this section.
    (3) For the 2013 fishing year, a part-time scallop vessel is 
allocated two trips that may be distributed between access areas as 
follows: Two trips in the Hudson Canyon Access Area; one trip in the 
Closed Area II Access Area and one trip in the Nantucket Lightship 
Access Area; one trip in the Closed Area II Access Area and one trip in 
the Hudson Canyon Access Area; one trip in the Closed Area II Access 
Area and one trip in the Delmarva Access Area; one trip in the 
Nantucket Lightship Access Area and one trip in the Hudson Canyon 
Access Area; one trip in the Nantucket Lightship Access Area and one 
trip in the Delmarva Access Area; or one trip in the Hudson Canyon 
Access Area and one trip in the Delmarva Access Area. Part-time vessels 
are subject to the seasonal trip restrictions specified in paragraph 
(a)(3)(i)(C)(4) of this section. The access area trip allocations for 
the 2013 fishing year are default allocations and are subject to change 
in a future framework adjustment.
    (4) A part-time scallop vessel may not fish for, possess, or retain 
more than a combined total of 14,400 lb (6,532 kg) of scallops, the 
equivalent of one full trip possession limit specified in Sec.  
648.60(a)(5)(i), during the period June 15 through October 31 from the 
Delmarva and Hudson Canyon Access Areas specified in Sec.  648.59(a) 
and (e). For example, a part-time vessel may possess or land up to 
14,400 lb (6,532 kg) from the Hudson Canyon Access Area, up to 14,400 
lb (6,532 kg) from the Delmarva Access Area, or up to 14,400 lb (6,532 
kg) combined from separate trips into each access area during June 15 
through October 31. The remaining access area trips allocated to part-
time vessels may be taken in the Hudson Canyon Access Area or Delmarva 
Access Area during the remainder of the fishing year, or taken in a 
different access area during the period of June 15 through October 31. 
These possession and landing restrictions does not include the 
additional possession allowance to defray the cost of carrying an 
observer as specified in Sec.  648.60(d) that occur during observed 
trips between June 15 through October 31.
    (i) If, prior to the implementation of Framework 22, a part-time 
vessel possesses or lands more than 14,400 lb (6,532 kg) from declared 
access area trips into the Delmarva and Hudson Canyon Access Areas 
combined during June 15 through October 31 in fishing year 2011, that 
vessel shall not declare an access area trip in fishing year 2012 in 
the Mid-Atlantic during June 15 through October 31.
    (ii) [Reserved]
    (D) Occasional scallop vessels. (1) For the 2011 fishing year, an 
occasional scallop vessel may take one trip in the Closed Area I Access 
Area, or one trip in the Closed Area II Access Area, or one trip in the 
Hudson Canyon Access Area, or one trip in the Delmarva Access Area.
    (2) For the 2012 fishing year, an occasional scallop vessel may 
take one trip in the Hudson Canyon Access Area, or one trip in the 
Closed Area I Access Area, or one trip in the Closed Area II Access 
Area, or one trip in the Nantucket Lightship Access Area, or one trip 
in the Delmarva Access Area.
    (3) For the 2013 fishing year, an occasional scallop vessel may 
take one trip in the Hudson Canyon Access Area, or one trip in the 
Closed Area II Access Area, or one trip in the Nantucket Lightship 
Access Area, or one trip in the Delmarva Access Area. The access area 
trip allocations for the 2013 fishing year are default allocations and 
are subject to change in a future framework adjustment.
    (E) [Reserved]
* * * * *
    (5) * * *
    (i) Scallop possession limits. Unless authorized by the Regional 
Administrator, as specified in paragraphs (c) and (d) of this section, 
after declaring a trip into a Sea Scallop Access Area, a vessel owner 
or operator of a limited access scallop vessel may fish for, possess, 
and land, per trip, scallops, up to the maximum amounts specified in 
the table in this paragraph (a)(5). Full-time and part-time vessels 
shall not fish for, possess, or retain more than 18,000 lb (8,165 kg) 
and 14,400 lb (6,532 kg), respectively, of scallops from the Hudson 
Canyon and Delmarva Access Areas, combined, from trips taken between 
June 15 and October 31

[[Page 23961]]

(i.e., the equivalent of one full trip based on permit category). In 
addition, if the owner of a full-time vessel has exchanged a trip(s) 
with another vessel owner(s) so that the vessel has a total allocation 
of four combined trips into the Delmarva and/or Hudson Canyon Access 
Areas, that vessel may not fish for, possess, or retain more than a 
combined total of 36,000 lb (16,329 kg) of scallops, the equivalent of 
two full trip possession limits specified in paragraph (a)(5)(i) of 
this section, during this time period from the Delmarva and/or Hudson 
Canyon Access Areas. These possession and landing restrictions do not 
include the additional possession allowance to defray the cost of 
carrying an observer as specified in paragraph (d) of this section that 
occur during observed trips between June 15 and October 31. No vessel 
declared into the Access Areas as described in Sec.  648.59(a) through 
(e) may possess more than 50 bu (17.62 hL) of in-shell scallops outside 
of the Access Areas described in Sec.  648.59(a) through (e).

----------------------------------------------------------------------------------------------------------------
                                                            Permit category possession limit
             Fishing year             --------------------------------------------------------------------------
                                              Full-time                Part-time                Occasional
----------------------------------------------------------------------------------------------------------------
2010.................................     18,000 lb (8,165 kg)     14,400 lb (6,532 kg)      6,000 lb (2,722 kg)
2012.................................     18,000 lb (8,165 kg)     14,400 lb (6,532 kg)      6,000 lb (2,722 kg)
2013.................................     18,000 lb (8,165 kg)     14,400 lb (6,532 kg)      6,000 lb (2,722 kg)
----------------------------------------------------------------------------------------------------------------

* * * * *
    (c) * * *
    (5) * * *
    (ii) * * *
    (A) Pursuant to paragraphs (a)(3)(i)(B)(4) or (a)(3)(i)(C)(4) of 
this section, a full-time or part-time vessel may not take a 
compensation trip based on a single or multiple terminated trip(s) 
during the period June 15 through October 31 if the compensation trip 
would allow a vessel to land more than 18,000 lb (8,165 kg) or 14,400 
lb (6,532 kg) (i.e., the equivalent of one full access area trip), 
respectively, during the period June 15 through October 31, in the 
Hudson Canyon Access Area and Delmarva Access Area combined. For 
example, a vessel that terminated a trip in the Delmarva Access Area on 
June 1, 2011, and intends to declare two full trips in the Hudson 
Canyon Access Area from June 15 through October 31, must wait to fish 
its compensation trip in the Delmarva Access Area until on or after 
November 1, 2011. If the owner of a full-time vessel has exchanged a 
trip(s) with another vessel owner(s) so that the vessel has an 
allocation of four combined trips into the Delmarva and/or Hudson 
Canyon Access Areas, that vessel may not fish for, possess, or retain 
more than a combined total of 36,000 lb (16,329 kg) of scallops, the 
equivalent of two full trip possession limits specified in paragraph 
648.60(a)(5)(i) of this section, during this time period from the 
Delmarva and/or Hudson Canyon Access Areas.
* * * * *
    (v) Additional compensation trip carryover. If an Access Area trip 
conducted during the last 60 days of the open period or season for the 
Access Area is terminated before catching the allowed possession limit, 
and the requirements of paragraph (c) of this section are met, the 
vessel operator shall be authorized to fish an additional trip as 
compensation for the terminated trip in the following fishing year. The 
vessel owner/operator must take such additional compensation trips, 
complying with the trip notification procedures specified in paragraph 
(a)(2)(iii) of this section, within the first 60 days of that fishing 
year the Access Area first opens in the subsequent fishing year. For 
example, a vessel that terminates an Delmarva Access Area trip on 
December 29, 2011, must declare that it is beginning its additional 
compensation trip during the first 60 days that the Delmarva Access 
Area is open (March 1, 2012, through April 29, 2012). If an Access Area 
is not open in the subsequent fishing year, then the additional 
compensation trip authorization would expire at the end of the Access 
Area Season in which the trip was broken. For example, a vessel that 
terminates a Closed Area I trip on December 10, 2012, may not carry its 
additional compensation trip into the 2013 fishing year because Closed 
Area I is not open during the 2013 fishing year, and must complete any 
compensation trip by January 31, 2013.
    (d) * * *
    (1) Observer set-aside limits by area--(i) Nantucket Lightship 
Access Area. For the 2012 and 2013 fishing years, the observer set-
asides for the Nantucket Lightship Access Area are 36,000 lb (16 mt) 
and 84,450 lb (38 mt), respectively.
    (ii) Closed Area I Access Area. For the 2011 and 2012 fishing 
years, the observer set-asides for the Closed Area I Access Area are 
111,540 lb (51 mt) and 36,000 lb (316 mt), respectively.
    (iii) Closed Area II Access Area. For the 2011, 2012, and 2013 
fishing years, the observer set-aside for the Closed Area II Access 
Area are 35,060 lb (16 mt), 67,890 lb (31 mt), and 79,600 lb (36 mt), 
respectively.
    (iv) Delmarva Access Area. For the 2011, 2012, and 2013 fishing 
years, the observer set-aside for the Delmarva Access Area are 74,360 
lb (34 mt), 36,000 lb (316 mt), and 42,230 lb (19 mt), respectively.
    (v) Hudson Canyon Access Area. For the 2011, 2012, and 2013 fishing 
years, the observer set-aside for the Hudson Canyon Access Area are 
74,360 lb (34 mt), 107,980 lb (49 mt), and 126,680 lb (57 mt), 
respectively.
* * * * *
    (e) Sea Scallop Research in Access Areas
    (1) Access Areas available for harvest of research set-aside (RSA). 
RSA may be harvested in any access area that is open in a given fishing 
year, as specified through a framework adjustment and pursuant to Sec.  
648.56. The amount of pounds that can be harvested in each access area 
by vessels participating in approved RSA projects shall be determined 
through the RSA application review and approval process. The access 
areas open for RSA harvest for fishing years 2011 through 2013 are:
    (i) 2011: Delmarva Access Area, Hudson Canyon Access Area, Closed 
Area I Access Area, and Closed Area II Access Area.
    (ii) 2012: Delmarva Access Area, Hudson Canyon Access Area, Closed 
Area I Access Area, Closed Area II Access Area, and Nantucket Lightship 
Access Area.
    (iii) 2013: Delmarva Access Area, Hudson Canyon Access Area, 
Nantucket Lightship Access Area, and Closed Area II Access Area.
* * * * *
    (g) * * *
    (1) An LAGC scallop vessel may only fish in the scallop access 
areas specified in Sec.  648.59(a) through (e), subject to the seasonal 
restrictions specified in Sec.  648.59(b)(4), (c)(4), and (d)(4), and 
subject to the possession limit specified in Sec.  648.52(a), and 
provided the vessel complies with the requirements specified in 
paragraphs (a)(1), (a)(2), (a)(6) through (a)(9), (d), (e), (f), and 
(g)

[[Page 23962]]

of this section, and Sec.  648.85(c)(3)(ii). A vessel issued both a NE 
Multispecies permit and an LAGC scallop permit may fish in an approved 
SAP under Sec.  648.85 and under multispecies DAS in the Closed Area I, 
Closed Area II, and Nantucket Lightship Sea Scallop Access Areas 
specified in Sec.  648.59(b) through (d), provided the vessel complies 
with the requirements specified in Sec.  648.59(b)(5)(ii), (c)(5)(ii), 
and (d)(5)(ii), and this paragraph (g), but may not fish for, possess, 
or land scallops on such trips.
* * * * *
    7. In Sec.  648.62, paragraph (b)(1) is revised to read as follows.


Sec.  648.62  Northern Gulf of Maine (NGOM) scallop management area.

* * * * *
    (b) * * *
    (1) NGOM annual hard TACs. The annual hard TAC for the NGOM is 
70,000 lb (31.8 mt) for the 2011, 2012, and 2013 fishing years. The 
NGOM TAC for the 2013 fishing year is a default allocation and is 
subject to change in a future framework adjustment.
* * * * *
[FR Doc. 2011-10334 Filed 4-28-11; 8:45 am]
BILLING CODE 3510-22-P