[Federal Register Volume 82, Number 239 (Thursday, December 14, 2017)]
[Rules and Regulations]
[Pages 58761-58763]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2017-26901]


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DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

50 CFR Part 635

[Docket No. 120627194-3657-02]
RIN 0648-XF817


Atlantic Highly Migratory Species; North Atlantic Swordfish 
Fishery

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

ACTION: Temporary rule; Swordfish General Commercial permit retention 
limit inseason adjustment for the Northwest Atlantic, Gulf of Mexico, 
and U.S. Caribbean regions.

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SUMMARY: NMFS is adjusting the Swordfish (SWO) General Commercial 
permit retention limits for the Northwest Atlantic, Gulf of Mexico, and 
U.S. Caribbean regions for January through June of the 2018 fishing 
year, unless otherwise later noticed. The SWO General Commercial permit 
retention limit in each of these regions is increased from the 
regulatory default limits (either two or three fish) to six swordfish 
per vessel per trip. The SWO General Commercial permit retention limit 
in the Florida SWO Management Area will remain unchanged at the default 
limit of zero swordfish per vessel per trip. These adjustments apply to 
SWO General Commercial permitted vessels and Highly Migratory Species 
(HMS) Charter/Headboat permitted vessels when on a non-for-hire trip. 
This action is based upon consideration of the applicable inseason 
regional retention limit adjustment criteria.

DATES: The adjusted SWO General Commercial permit retention limits in 
the Northwest Atlantic, Gulf of Mexico, and U.S. Caribbean regions are 
effective from January 1, 2018, through June 30, 2018.

FOR FURTHER INFORMATION CONTACT:  Rick Pearson or Randy Blankinship, 
727-824-5399.

SUPPLEMENTARY INFORMATION: Regulations implemented under the authority 
of the Atlantic Tunas Convention Act (ATCA; 16 U.S.C. 971 et seq.) and 
the Magnuson-Stevens Fishery Conservation and Management Act (Magnuson-
Stevens Act; 16 U.S.C. 1801 et seq.) governing the harvest of North 
Atlantic swordfish by persons and vessels subject to U.S. jurisdiction 
are found at 50 CFR part 635. Section 635.27 subdivides the U.S. North 
Atlantic swordfish quota recommended by the International Commission 
for the Conservation of Atlantic Tunas (ICCAT) and implemented by the 
United States into two equal semi-annual directed fishery quotas--an 
annual incidental catch quota for fishermen targeting other species or 
catching swordfish recreationally, and a reserve category, according to 
the allocations established in the 2006 Consolidated Highly Migratory 
Species Fishery Management Plan (2006 Consolidated HMS FMP) (71 FR 
58058, October 2, 2006), as amended, and in accordance with 
implementing regulations. NMFS is required under ATCA and the Magnuson-
Stevens Act to provide U.S. fishing vessels with a reasonable 
opportunity to harvest the ICCAT-recommended quota.
    In 2017, ICCAT recommended that the overall North Atlantic 
swordfish total allowable catch (TAC) be set at 9,925 metric tons (mt) 
dressed weight (dw) (13,200 mt whole weight (ww)) through 2021. 
Consistent with scientific advice, this was a reduction of 500 mt ww 
(375.9 mt dw) from previous ICCAT-recommended TACs. However, of this 
TAC, the United States' baseline quota remained at 2,937.6 mt dw (3,907 
mt ww) per year. The Recommendation also continued to limit 
underharvest carryover to 15 percent of a contracting party's baseline 
quota. Thus, the United States could carry over a maximum of 440.6 mt 
dw (586.0 mt ww) of underharvest. Absent adjustments, the codified 
baseline quota is 2,937.6 mt dw for 2018. At this time, given the 
extent of underharvest in 2017, we anticipate carrying over the maximum 
allowable 15 percent (440.6 mt dw), which would result in a final 
adjusted North Atlantic swordfish quota for the 2018 fishing year equal 
to 3,378.2 mt dw (2,937.6 + 440.6 = 3,378.2 mt dw). Also as in past 
years, we anticipate allocating from the adjusted quota, 50 mt dw to 
the Reserve category for inseason adjustments and research, and 300 mt 
dw to the Incidental category, which includes recreational landings and 
landings by incidental swordfish permit holders, per Sec.  
635.27(c)(1)(i). This would result in an allocation of 3,028.2 mt dw 
for the directed fishery, which would be split equally (1,514.1 mt dw) 
between the two semi-annual periods in 2018 (January through June, and 
July through December).

Adjustment of SWO General Commercial Permit Vessel Retention Limits

    The 2018 North Atlantic swordfish fishing year, which is managed on 
a calendar-year basis and divided into two equal semi-annual quotas, 
begins on January 1, 2018. Landings attributable to the SWO General 
Commercial permit are counted against the applicable semi-annual 
directed fishery quota. Regional default retention limits for this 
permit have been established and are automatically effective from 
January 1 through December 31 each year, unless changed based on the 
inseason regional retention limit adjustment criteria at Sec.  
635.24(b)(4)(iv). The default retention limits established for the SWO 
General Commercial permit are: (1) Northwest Atlantic region--three 
swordfish per vessel per trip; (2) Gulf of Mexico region--three 
swordfish per vessel per trip; (3) U.S. Caribbean region--two swordfish 
per vessel per trip; and, (4) Florida SWO Management Area--zero 
swordfish per vessel per trip. The default retention limits apply to 
SWO General Commercial permitted vessels and to HMS Charter/Headboat 
permitted vessels when fishing on non for-hire trips. As a condition of 
these permits, vessels may not possess, retain, or land any more 
swordfish than is specified for the region in which the vessel is 
located.
    Under Sec.  635.24(b)(4)(iii), NMFS may increase or decrease the 
SWO General Commercial permit vessel retention limit in any region 
within a range from zero to a maximum of six swordfish per vessel per 
trip. Any adjustments to the retention limits must be based upon a 
consideration of the relevant criteria provided in Sec.  
635.24(b)(4)(iv), which include: The usefulness of information obtained 
from biological sampling and monitoring of the North Atlantic swordfish 
stock; the estimated ability of vessels participating in the fishery to 
land the amount of swordfish quota available before the end of the 
fishing year; the estimated amounts by which quotas for other 
categories of the fishery might be exceeded; effects of the adjustment 
on accomplishing the objectives of the fishery management plan and its 
amendments; variations in seasonal distribution, abundance, or 
migration patterns of swordfish; effects of catch rates in one region 
precluding vessels in another region from having a reasonable 
opportunity to harvest a portion of the overall swordfish quota; and, 
review of dealer reports, landing

[[Page 58762]]

trends, and the availability of swordfish on the fishing grounds.
    NMFS has considered these criteria as discussed below and their 
applicability to the SWO General Commercial permit retention limit in 
all regions for January through June of the 2018 North Atlantic 
swordfish fishing year and has determined that the SWO General 
Commercial permit retention limits in the Northwest Atlantic, Gulf of 
Mexico, and U.S. Caribbean regions applicable to persons issued a SWO 
General Commercial permit or HMS Charter/Headboat permit (when on a non 
for-hire trip) should be increased from the default levels that would 
otherwise automatically become effective on January 1, 2018, to six 
swordfish per vessel per trip from January 1 through June 30, 2018, 
unless otherwise later noticed.
    Among the regulatory criteria for inseason adjustments to retention 
limits, and given the rebuilt status of the stock and availability of 
quota, is the requirement that NMFS consider the ``effects of the 
adjustment on accomplishing the objectives of the fishery management 
plan and its amendments.'' One consideration in deciding whether to 
increase the retention limit, in this case, is the objective of 
providing opportunities to harvest the full North Atlantic directed 
swordfish quota without exceeding it based upon the 2006 Consolidated 
HMS FMP goal to, consistent with other objectives of this FMP, ``manage 
Atlantic HMS fisheries for continuing optimum yield so as to provide 
the greatest overall benefit to the Nation, particularly with respect 
to food production, providing recreational opportunities, preserving 
traditional fisheries, and taking into account the protection of marine 
ecosystems.'' Another consideration, consistent with the FMP and its 
amendments, is to continue to provide protection to important swordfish 
juvenile areas and migratory corridors.
    The regulatory criteria also require NMFS to consider the estimated 
ability of vessels participating in the fishery to land the amount of 
swordfish quota available before the end of the fishing year. In 
considering these criteria and their application here, NMFS examined 
electronic dealer reports, which provide accurate and timely monitoring 
of landings, and considered recent landing trends and information 
obtained from biological sampling and monitoring of the North Atlantic 
swordfish stock. A six swordfish per vessel per trip limit for SWO 
General Commercial permit holders was in effect in the Northwest 
Atlantic, Gulf of Mexico, and U.S. Caribbean regions for the entire 
2016 fishing season as a result of actions adjusting those limits 
upwards in January and July (80 FR 81770 and 81 FR 38966). Even with 
these higher retention limits, 2016 total annual directed swordfish 
landings through December 31, 2016, were approximately 1,079.0 mt dw, 
or 32.6 percent of the 3,009.4 mt dw annual adjusted directed swordfish 
quota. Similarly, with higher retention limits during both semi-annual 
quota periods in 2017, preliminary total directed swordfish landings 
through October 31, 2017, are approximately 744.2 mt dw, or 24.7 
percent of the 3,009.4 mt dw annual adjusted directed swordfish quota 
established for 2017.
    The total available directed swordfish quota has not been harvested 
for several years and, based upon current landing trends, is not likely 
to be harvested or exceeded during 2018. This information indicates 
that sufficient directed swordfish quota should be available from 
January 1 through June 30, 2018, at the higher retention levels, within 
the limits of the scientifically-supported TAC and consistent with the 
goals of the FMP.
    The regulatory criteria for inseason adjustments also require NMFS 
to consider the estimated amounts by which quotas for other categories 
of the fishery might be exceeded. Based upon recent landings rates from 
dealer reports, an increase in the vessel retention limit for SWO 
General Commercial permit holders is not likely to cause quotas for 
other categories of the fishery to be exceeded as the directed category 
quota has been significantly underharvested in recent years and 
landings trends are not expected to vary significantly in 2018. 
Similarly, regarding the criteria that NMFS consider the effects of 
catch rates in one region precluding vessels in another region from 
having a reasonable opportunity to harvest a portion of the overall 
swordfish quota, NMFS expects there to be sufficient swordfish quota 
for 2018, and thus increased catch rates in these three regions as a 
result of this action would not be expected to preclude vessels in the 
other region (e.g., the buoy gear fishery in the Florida SWO Management 
Area) from having a reasonable opportunity to harvest a portion of the 
overall swordfish quota.
    Finally, in making adjustments to the retention limits NMFS must 
consider variations in seasonal distribution, abundance, or migration 
patterns of swordfish, and the availability of swordfish on the fishing 
grounds. With regard to swordfish abundance, the 2017 report by ICCAT's 
Standing Committee on Research and Statistics indicated that the North 
Atlantic swordfish stock is not overfished (B2015/
Bmsy = 1.04), and overfishing is not occurring 
(F2015/Fmsy = 0.78). Increasing the retention 
limits for this U.S. handgear fishery is not expected to affect the 
swordfish stock status determination because any additional landings 
would be within the established overall U.S. North Atlantic swordfish 
quota allocation recommended by ICCAT. Increasing opportunity beginning 
on January 1, 2018, is also important because of the migratory nature 
and seasonal distribution of swordfish. In a particular geographic 
region, or waters accessible from a particular port, the amount of 
fishing opportunity for swordfish may be constrained by the short 
amount of time the swordfish are present as they migrate.
    NMFS also has determined that the retention limit for the SWO 
General Commercial permit will remain at zero swordfish per vessel per 
trip in the Florida SWO Management Area at this time. As discussed 
above, NMFS considered consistency with the 2006 Consolidated HMS FMP 
and its amendments, and the importance for NMFS to continue to provide 
protection to important swordfish juvenile areas and migratory 
corridors. As described in Amendment 8 to the 2006 Consolidated HMS FMP 
(78 FR 52012), the area off the southeastern coast of Florida, 
particularly the Florida Straits, contains oceanographic features that 
make the area biologically unique. It provides important juvenile 
swordfish habitat, and is essentially a narrow migratory corridor 
containing high concentrations of swordfish located in close proximity 
to high concentrations of people who may fish for them. Public comment 
on Amendment 8, including from the Florida Fish and Wildlife 
Conservation Commission, indicated concern about the resultant high 
potential for the improper rapid growth of a commercial fishery, 
increased catches of undersized swordfish, the potential for larger 
numbers of fishermen in the area, and the potential for crowding of 
fishermen, which could lead to gear and user conflicts. These concerns 
remain valid. NMFS will continue to collect information to evaluate the 
appropriateness of the retention limit in the Florida SWO Management 
Area and other regional retention limits. This action therefore 
maintains a zero-fish retention limit in the Florida Swordfish 
Management Area.
    These adjustments are consistent with the 2006 Consolidated HMS FMP 
as amended, ATCA, and the Magnuson-

[[Page 58763]]

Stevens Act, and are not expected to negatively impact stock health.

Monitoring and Reporting

    NMFS will continue to monitor the swordfish fishery closely during 
2018 through mandatory landings and catch reports. Dealers are required 
to submit landing reports and negative reports (if no swordfish were 
purchased) on a weekly basis.
    Depending upon the level of fishing effort and catch rates of 
swordfish, NMFS may determine that additional retention limit 
adjustments or closures are necessary to ensure that available quota is 
not exceeded or to enhance fishing opportunities. Subsequent actions, 
if any, will be published in the Federal Register. In addition, 
fishermen may access http://www.nmfs.noaa.gov/sfa/hms/species/swordfish/landings/index.html for updates on quota monitoring.

Classification

    The Assistant Administrator for NMFS (AA) finds that it is 
impracticable and contrary to the public interest to provide prior 
notice of, and an opportunity for public comment on, this action for 
the following reasons:
    The regulations implementing the 2006 Consolidated HMS FMP, as 
amended, provide for inseason retention limit adjustments to respond to 
changes in swordfish landings, the availability of swordfish on the 
fishing grounds, the migratory nature of this species, and regional 
variations in the fishery. Based on available swordfish quota, stock 
abundance, fishery performance in recent years, and the availability of 
swordfish on the fishing grounds, among other considerations, 
adjustment to the SWO General Commercial permit retention limits from 
the default levels of two or three fish to six SWO per vessel per trip 
as discussed above is warranted, while maintaining a zero-fish 
retention limit in the Florida SWO Management Area. Analysis of 
available data shows that adjustment to the swordfish retention limit 
from the default levels would result in minimal risk of exceeding the 
ICCAT-allocated quota. NMFS provides notification of retention limit 
adjustments by publishing the notification in the Federal Register, 
emailing individuals who have subscribed to the Atlantic HMS News 
electronic newsletter, and updating the information posted on the 
``Atlantic HMS Breaking News'' website at http://www.nmfs.noaa.gov/sfa/hms/news/breaking_news.html. Delays in temporarily increasing these 
retention limits caused by the time required to publish a proposed rule 
and accept public comment would adversely and unnecessarily affect 
those SWO General Commercial permit holders and HMS Charter/Headboat 
permit holders that would otherwise have an opportunity to harvest more 
than the otherwise applicable lower default retention limits of three 
swordfish per vessel per trip in the Northwest Atlantic and Gulf of 
Mexico regions, and two swordfish per vessel per trip in the U.S. 
Caribbean region. Further, any delay beyond January 1, 2018, the start 
of the first semi-annual directed fishing period, could result in even 
lower swordfish landings because of the lower default retention limits. 
Limited opportunities to harvest the directed swordfish quota may have 
negative social and economic impacts for U.S. fishermen. Adjustment of 
the retention limits needs to be effective on January 1, 2018, to allow 
SWO General Commercial permit holders and HMS Charter/Headboat permit 
holders to benefit from the adjustment during the relevant time period, 
which could pass by for some fishermen, particularly in the Gulf of 
Mexico and U.S. Caribbean regions who have access to the fishery during 
a short time period because of seasonal fish migration, if the action 
is delayed for notice and public comment. Therefore, the AA finds good 
cause under 5 U.S.C. 553(b)(B) to waive prior notice and the 
opportunity for public comment. For all of the above reasons, there is 
also good cause under 5 U.S.C. 553(d) to waive the 30-day delay in 
effectiveness.
    This action is being taken under 50 CFR 635.24(b)(4) and is exempt 
from review under Executive Order 12866.

    Authority: 16 U.S.C. 971 et seq. and 1801 et seq.

    Dated: December 8, 2017.
Emily H. Menashes,
Acting Director, Office of Sustainable Fisheries, National Marine 
Fisheries Service.
[FR Doc. 2017-26901 Filed 12-13-17; 8:45 am]
BILLING CODE 3510-22-P