[Federal Register Volume 76, Number 123 (Monday, June 27, 2011)]
[Rules and Regulations]
[Pages 37287-37289]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2011-16039]


-----------------------------------------------------------------------

DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

50 CFR Part 665

[Docket No. 0808051054-1319-02]
RIN 0648-AW67


Western Pacific Pelagic Fisheries; Prohibiting Longline Fishing 
Within 30 nm of the Northern Mariana Islands

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

ACTION: Final rule.

-----------------------------------------------------------------------

SUMMARY: This final rule prohibits pelagic longline fishing within 
approximately 30 nautical miles (nm) of the islands of the Commonwealth 
of the Northern Mariana Islands (CNMI). By establishing a longline 
fishing prohibited area around the CNMI, NMFS intends to reduce the 
potential for nearshore localized fish depletion from longline fishing, 
and to limit catch competition and gear conflicts between the CNMI-
based longline and trolling fleets. This rule also makes several 
administrative clarifications to the pelagic fishing regulations.

DATES: This final rule is effective July 27, 2011.

ADDRESSES: The background on this final rule may be found in the 
Fishery Ecosystem Plan for Pelagic Fisheries of the Western Pacific 
Region (FEP) and FEP Amendment 2, which are available from the Western 
Pacific Fishery Management Council (Council), 1164 Bishop St., Suite 
1400, Honolulu, HI 96813, tel 808-522-8220, fax 808-522-8226, http://www.wpcouncil.org. Amendment 2 may also be found at http://www.regulations.gov.

FOR FURTHER INFORMATION CONTACT: Toby Wood, NMFS PIR Sustainable 
Fisheries, 808-944-2234.

SUPPLEMENTARY INFORMATION: Pelagic fisheries in the U.S. western 
Pacific are managed under the FEP. In Amendment 2, the Council 
recommended that NMFS prohibit purse seine fishing in the U.S. EEZ 
around the Mariana Archipelago, including the CNMI and Guam, and 
prohibit pelagic longline fishing within 30 nm (approx. 56 km) of the 
CNMI. The recommended prohibition on purse seine fishing was intended 
to limit impacts on juvenile recruitment of bigeye tuna, and reduce the 
potential for localized depletion and catch competition between purse 
seine vessels and the pelagic fishing fleets of the CNMI and Guam. The 
recommended longline closed area near the CNMI was intended to minimize 
potential gear conflicts and catch competition between the local 
pelagic trolling fleet and the developing CNMI-based longline fishery 
(a 50-nm (93 km) longline prohibited area currently exists around Guam 
to prevent gear conflicts).
    Additional background information on this final rule is found in 
the preamble to the proposed rule published on March 31, 2011 (76 FR 
17811); the comment period ended on May 16, 2011. NMFS received two 
substantive comments, and responds as follows:
    Comment 1: The longline prohibited area around the CNMI should be 
increased to 90 nm (167 km) from the proposed 30 nm to further protect 
marine life and seafood resources in the region.
    Response: U.S. longline fishing in the Pacific is regulated 
stringently to minimize impacts on protected species and harvest fish 
sustainably. Requirements for this fishery include permits, specific 
gear configuration and identification, area restrictions monitored by a 
satellite vessel monitoring system, observer placement when requested, 
educational workshops, and reporting requirements for fishing 
activities and interactions with protected resources, and others.
    The Council and NMFS assessed the potential impacts of longline 
prohibited areas ranging in size from 25 to 100 nm (46 to 185 km) 
around the CNMI, and concluded that a 30-nm zone best achieved the 
conservation and management objectives of the proposed amendment, while 
at the same time minimizing economic costs and ensuring sustained 
participation by fishermen. The 30-nm prohibited area encompasses the 
majority of the submarine habitat containing banks and reefs where 
small boats typically concentrate their fishing efforts. Excluding 
longline fishing from this zone will prevent gear conflicts and 
competition for catches between the small boats and larger longliners, 
and will reduce the likelihood of longline gear entanglement on the 
banks and reefs, thereby protecting reefs and the marine life that 
depends on it.
    Larger prohibited areas would impose higher travel costs to the 
longline vessels with little to no additional benefit of conserving 
stocks of pelagic fish or protected resources, or minimizing the 
potential for gear conflicts with the small boat fishery. A 30-nm 
prohibited area is not so large as to prevent longline fishing 
activity, which will allow for the development of the longline fishery 
and provide economic benefits to the CNMI.
    Comment 2: There is little demonstrated need or justification for 
the proposed prohibition on purse seine fishing because there is 
virtually no history of purse seine fishing in the Mariana Archipelago, 
and there is little evidence that purse seine fishing negatively 
impacts other pelagic fisheries in the area. Also, an EEZ closure will 
disadvantage the United States in its negotiations to renew the South 
Pacific Tuna Treaty, as the proposed prohibition on purse seine fishing 
in the U.S. EEZ might encourage other Pacific Island parties to take 
similar protective measures in their national waters.
    Response: NMFS agrees, and this final rule will not implement the 
proposed prohibition on purse seine fishing in the EEZ around the 
Mariana Archipelago. Under the Magnuson-Stevens Act, NMFS may partially 
approve a plan or amendment to the FEP offered by the Council. When 
partially approving an amendment, NMFS must specify the applicable law 
with which the amendment is inconsistent, explain the nature of the 
inconsistency, and recommend to the Council actions it could take to 
conform the amendment to the applicable law.
    The Magnuson-Stevens Act requires NMFS to consider ten National 
Standards when implementing fishery conservation and management 
measures. National Standard 2 requires such measures to be based on the 
best scientific information available, and requires fishery management 
actions to be founded on thorough analyses that allow NMFS to 
rationally conclude that the selected alternative will accomplish 
legitimate conservation and management objectives. The scientific 
analysis in Amendment 2 presented inconclusive evidence of a negative 
impact of purse seine fishing on other fisheries and fish stocks, with 
the possible exception of some localized impacts on trolling catch 
rates over small distances near American Samoa. Nonetheless, the 
Council recommended prohibiting U.S. purse seine fishing throughout the 
entire EEZ around the Mariana Archipelago. That recommendation is not 
supported by the best available scientific evidence on the need to 
reduce interactions between the purse seine and local trolling 
fisheries in the area around the CNMI, and is,

[[Page 37288]]

therefore, inconsistent with National Standard 2. Accordingly, NMFS did 
not approve the proposed purse seine prohibition, and it is not part of 
this final rule. The Council may revisit the issue if activities by 
U.S. purse seine vessels change, or if new scientific information is 
presented.

Changes From the Proposed Rule

    The proposed rule contained provisions that would have defined 
purse seine fishing and prohibited purse seine fishing within the EEZ 
around Guam and the CNMI. Those provisions were not approved, so the 
final rule does not include the definition or prohibition on purse 
seine fishing. The final rule does implement the Council's recommended 
prohibited area for longline fishing around the CNMI. This final rule 
also makes administrative changes to the pelagic fishing regulations: 
all pelagic fishing prohibited areas (existing longline prohibited 
areas in Hawaii and Guam, the American Samoa large vessel prohibited 
areas, and the new CNMI longline prohibited area) are combined into 50 
CFR 665.806.

Classification

    The Administrator, Pacific Islands Region, NMFS, determined that 
the part of Amendment 2 that pertains to a prohibited area for pelagic 
longline fishing in the CNMI is necessary for the conservation and 
management of CNMI pelagic fisheries, and that it is consistent with 
the Magnuson-Stevens Act and other applicable laws.
    The Chief Council for Regulation of the Department of Commerce 
certified to the Chief Council for Advocacy of the Small Business 
Administration during the proposed rule stage that this action would 
not have a significant economic impact on a substantial number of small 
entities. The factual basis for the certification was published in the 
proposed rule and is not repeated here. No comments were received 
regarding this certification. Although this final rule does not 
implement all of the proposed measures, the determination in the 
proposed rule that this final action will not have a significant 
economic effect on a substantial number of small entities remains 
unchanged. As a result, a regulatory flexibility analysis was not 
required and none was prepared.
    This final rule has been determined to be not significant for 
purposes of Executive Order 12866.

List of Subjects in 50 CFR Part 665

    Administrative practice and procedure, Fisheries, Fishing, 
Longline, Northern Mariana Islands, Prohibited areas.

    Dated: June 21, 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 chapter VI is 
amended as follows:

PART 665--FISHERIES IN THE WESTERN PACIFIC

0
1. The authority citation for part 665 continues to read as follows:

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


0
2. In Sec.  665.802, revise paragraphs (v) and (xx) to read as follows:


Sec.  665.802  Prohibitions.

* * * * *
    (v) Use longline gear to fish within a longline fishing prohibited 
area in violation of Sec.  665.806, except as allowed pursuant to an 
exemption issued under Sec. Sec.  665.17 or 665.807.
* * * * *
    (xx) Use a large vessel to fish for western Pacific Pelagic MUS 
within an American Samoa large vessel prohibited area in violation of 
Sec.  665.806, except as allowed pursuant to an exemption issued under 
Sec. Sec.  665.17 or 665.818.
* * * * *

0
3. Revise Sec.  665.806 to read as follows:


Sec.  665.806  Prohibited area management.

    (a) Longline fishing prohibited areas. Longline fishing is 
prohibited in the longline fishing prohibited areas as defined in 
paragraphs (a)(1) through (a)(4) of this section.
    (1) NWHI protected species zone. The NWHI protected species zone is 
the portion of the EEZ within 50 nm of the center geographical 
positions of certain islands and reefs in the NWHI, as follows:

------------------------------------------------------------------------
                       Name                          N. lat.    W. long.
------------------------------------------------------------------------
Nihoa Island......................................  23[deg]05  161[deg]5
                                                            '         5'
Necker Island.....................................  23[deg]35  164[deg]4
                                                            '         0'
French Frigate Shoals.............................  23[deg]45  166[deg]1
                                                            '         5'
Gardner Pinnacles.................................  25[deg]00  168[deg]0
                                                            '         0'
Maro Reef.........................................  25[deg]25  170[deg]3
                                                            '         5'
Laysan Island.....................................  25[deg]45  171[deg]4
                                                            '         5'
Lisianski Island..................................  26[deg]00  173[deg]5
                                                            '         5'
Pearl and Hermes Reef.............................  27[deg]50  175[deg]5
                                                            '         0'
Midway Island.....................................  28[deg]14  177[deg]2
                                                            '         2'
Kure Island.......................................  28[deg]25  178[deg]2
                                                            '         0'
------------------------------------------------------------------------
Where the areas are not contiguous, parallel lines drawn tangent to and
 connecting those semicircles of the 50-nm areas that lie between Nihoa
 Island and Necker Island, French Frigate Shoals and Gardner Pinnacles,
 Gardner Pinnacles and Maro Reef, and Lisianski Island and Pearl and
 Hermes Reef, delimit the remainder of the NWHI longline protected
 species zone.
------------------------------------------------------------------------

     (2) Main Hawaiian Islands (MHI). (i) From February 1 through 
September 30 each year, the MHI longline fishing prohibited area is the 
portion of the EEZ around Hawaii bounded by straight lines connecting 
the following coordinates in the order listed:

------------------------------------------------------------------------
                  Point                       N. lat.        W. long.
------------------------------------------------------------------------
A.......................................      18[deg]05'     155[deg]40'
B.......................................      18[deg]20'     156[deg]25'
C.......................................      20[deg]00'     157[deg]30'
D.......................................      20[deg]40'     161[deg]40'
E.......................................      21[deg]40'     161[deg]55'
F.......................................      23[deg]00'     161[deg]30'
G.......................................      23[deg]05'     159[deg]30'
H.......................................      22[deg]55'     157[deg]30'
I.......................................      21[deg]30'     155[deg]30'
J.......................................      19[deg]50'     153[deg]50'
K.......................................      19[deg]00'     154[deg]05'
A.......................................      18[deg]05'     155[deg]40'
------------------------------------------------------------------------

     (ii) From October 1 through the following January 31 each year, 
the MHI longline fishing prohibited area is the portion of the EEZ 
around Hawaii bounded by straight lines connecting the following 
coordinates in the order listed:

------------------------------------------------------------------------
                  Point                       N. lat.        W. long.
------------------------------------------------------------------------
A.......................................      18[deg]05'     155[deg]40'
L.......................................      18[deg]25'     155[deg]40'
M.......................................      19[deg]00'     154[deg]45'
N.......................................      19[deg]15'     154[deg]25'
O.......................................      19[deg]40'     154[deg]20'
P.......................................      20[deg]20'     154[deg]55'
Q.......................................      20[deg]35'     155[deg]30'
R.......................................      21[deg]00'     155[deg]35'
S.......................................      22[deg]30'     157[deg]35'
T.......................................      22[deg]40'     159[deg]35'
U.......................................      22[deg]25'     160[deg]20'
V.......................................      21[deg]55'     160[deg]55'
W.......................................      21[deg]40'     161[deg]00'
E.......................................      21[deg]40'     161[deg]55'
D.......................................      20[deg]40'     161[deg]40'
C.......................................      20[deg]00'     157[deg]30'
B.......................................      18[deg]20'     156[deg]25'
A.......................................      18[deg]05'     155[deg]40'
------------------------------------------------------------------------

     (3) Guam. The Guam longline fishing prohibited area is the portion 
of the EEZ around Guam bounded by straight lines connecting the 
following coordinates in the order listed:

------------------------------------------------------------------------
                  Point                       N. lat.        E. long.
------------------------------------------------------------------------
A.......................................      14[deg]25'     144[deg]00'

[[Page 37289]]

 
B.......................................      14[deg]00'     143[deg]38'
C.......................................      13[deg]41'  143[deg]33'33`
                                                                       `
D.......................................      13[deg]00'  143[deg]25'30`
                                                                       `
E.......................................      12[deg]20'     143[deg]37'
F.......................................      11[deg]40'     144[deg]09'
G.......................................      12[deg]00'     145[deg]00'
H.......................................      13[deg]00'     145[deg]42'
I.......................................      13[deg]27'     145[deg]51'
------------------------------------------------------------------------

     (4) CNMI. The CNMI longline fishing prohibited area is the portion 
of the EEZ around the CNMI bounded by straight lines connecting the 
following coordinates in the order listed:

------------------------------------------------------------------------
                  Point                       N. lat.        E. long.
------------------------------------------------------------------------
A.......................................      14[deg]00'     144[deg]34'
B.......................................      15[deg]49'     145[deg]29'
C.......................................      16[deg]21'     145[deg]06'
D.......................................      17[deg]03'     145[deg]22'
E.......................................      19[deg]07'     145[deg]09'
F.......................................      20[deg]39'     144[deg]19'
G.......................................      21[deg]04'     145[deg]06'
H.......................................      19[deg]19'     146[deg]04'
I.......................................      16[deg]00'     146[deg]32'
J.......................................      13[deg]32'     145[deg]32'
A.......................................      14[deg]00'     144[deg]34'
------------------------------------------------------------------------

     (b) American Samoa large vessel prohibited areas. A large vessel 
of the United States may not be used to fish for western Pacific 
pelagic MUS in the American Samoa large vessel prohibited areas as 
defined in paragraphs (b)(1) and (b)(2) of this section, except as 
allowed pursuant to an exemption issued under Sec.  665.818.
    (1) Tutuila Island, Manua Islands, and Rose Atoll (AS-1). The 
Tutuila Island, Manua Islands, and Rose Atoll large vessel prohibited 
area is the portion of the EEZ around American Samoa enclosed by 
straight lines connecting the following coordinates:

------------------------------------------------------------------------
                  Point                       S. lat.        W. long.
------------------------------------------------------------------------
AS-1-A..................................      13[deg]30'     167[deg]25'
AS-1-B..................................      15[deg]13'     167[deg]25'
------------------------------------------------------------------------
  and from Point AS-1-A westward along the latitude 13[deg]30' S. until
  intersecting the U.S. EEZ boundary with Samoa, and from Point AS-1-B
  westward along the latitude 15[deg]13' S. until intersecting the U.S.
                        EEZ boundary with Samoa.
------------------------------------------------------------------------

     (2) Swains Island (AS-2). The Swains Island large vessel 
prohibited area is the portion of the EEZ around American Samoa 
enclosed by straight lines connecting the following coordinates:

------------------------------------------------------------------------
                  Point                       S. lat.        W. long.
------------------------------------------------------------------------
AS-2-A..................................      11[deg]48'     171[deg]50'
AS-2-B..................................      11[deg]48'     170[deg]20'
------------------------------------------------------------------------
and from Point AS-2-A northward along the longitude 171[deg]50' W. until
 intersecting the U.S. EEZ boundary with Tokelau, and from Point AS-2-B
northward along the longitude 170[deg]20' W. until intersecting the U.S.
                       EEZ boundary with Tokelau.
------------------------------------------------------------------------



0
4. Revise the section heading in Sec.  665.807 to read as follows:


Sec.  665.807  Exemptions for Hawaii longline fishing prohibited areas; 
procedures.

* * * * *


Sec.  665.817  [Removed and Reserved]

0
5. Remove and reserve Sec.  665.817.
[FR Doc. 2011-16039 Filed 6-24-11; 8:45 am]
BILLING CODE 3510-22-P