[Federal Register Volume 84, Number 24 (Tuesday, February 5, 2019)]
[Rules and Regulations]
[Pages 1632-1640]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2019-00979]


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DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

50 CFR Part 648

[Docket No. 180921861-8861-01]
RIN 0648-XG503


Revisions to Framework Adjustment 57 to the Northeast 
Multispecies Fishery Management Plan and Sector Annual Catch 
Entitlements; Updated Annual Catch Limits for Sectors and the Common 
Pool for Fishing Year 2018

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

ACTION: Final rule; adjustment to specifications.

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SUMMARY: Under the Magnuson-Stevens Fishery Conservation and Management 
Act (MSA), this final rule adjusts the 2018 fishing year allocations to 
sectors and the common pool specified in Framework Adjustment 57 to the 
Northeast Multispecies Fishery Management Plan; makes other minor 
adjustments based on final 2017 catch information; and distributes 
sector allocation carried over from fishing year 2017 into fishing year 
2018 as required by the sector regulations. The revisions are necessary 
to account for changes to 2018 sub-annual catch limits based on final 
2018 sector rosters. These adjustments are routine and formulaic and 
are intended to ensure that final allocations are based on the best 
scientific information available.

DATES: Effective February 4, 2019, through April 30, 2019.

FOR FURTHER INFORMATION CONTACT: Claire Fitz-Gerald, Fishery Management 
Specialist, (978) 281-9255.

SUPPLEMENTARY INFORMATION: We recently approved Framework Adjustment 
57, which set annual catch limits for 20 groundfish stocks for the 2018 
fishing year. This action became effective on May 1, 2018 (83 FR 18985; 
May 1, 2018). Framework 57 included preliminary allocations for sectors 
and the common pool based on final sector enrollment for the 2017 
fishing year. A sector receives an allocation of each stock, or annual 
catch entitlement (referred to as ACE, or allocation), based on its 
members' catch histories. State-operated permit banks also receive an 
allocation that can be transferred to qualifying sector vessels. The 
sum of all sector and state-operated permit bank allocations is 
referred to as the sector sub-annual catch limit (sub-ACL). The 
groundfish allocations remaining after sectors and state-operated 
permit banks receive their allocations are then allocated to the common 
pool (i.e., vessels not enrolled in a sector), which is referred to as 
the common pool sub-ACL.
    The MSA at section 305(d) gives us the responsibility and authority 
to carry out fishery management plans. Using this authority, this rule 
adjusts the 2018 fishing year sector and common pool sub-ACLs and 
sector ACEs based on final sector membership as of May 1, 2018. Permits 
enrolled in a sector and the vessels associated with those permits have 
until April 30, the last day prior to the beginning of a new fishing 
year, to withdraw from a sector and fish in the common pool. As a 
result, the actual sector enrollment for the new fishing year is 
unknown when the final specifications are published. Each year, we 
subsequently publish an adjustment rule modifying sector and common 
pool allocations based on final sector enrollment. The Framework 57 
proposed and final rules both explained that sector enrollments may 
change and that there would be a need to adjust the sub-ACLs and sector 
ACEs accordingly. Table 1 shows the changes to the sub-

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ACLs between Framework 57 and this adjustment rule.
    In contrast to Framework 57, this year's sector rule provided 
sector ACE for 17 sectors based on preliminary fishing year 2018 
potential sector contributions and the preliminary fishing year 2018 
sector rosters that were submitted on March 26, 2018 (83 FR 18965; May 
1, 2018). An interim final sector rule allocated ACE to the 2 remaining 
sectors on July 20, 2018 (83 FR 34492; July 20, 2018). There were no 
changes to sector enrollment following submission of the preliminary 
rosters. Therefore, the sector-specific allocations described in the 
sector rules are correct and do not require adjustment.

              Table 1--Sub-ACL Comparison Between Framework 57 Final Rule and Adjustment Rule (mt)
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                                                                                       Final
                                                       Final      Final adjusted   Framework 57   Final adjusted
                      Stock                        Framework 57   sector sub-ACL    common pool     common pool
                                                  sector sub-ACL                      sub-ACL         sub-ACL
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GB Cod..........................................           1,335           1,170              25              24
GOM Cod.........................................             377             357              13              12
GB Haddock......................................          44,348          44,340             311             319
GOM Haddock.....................................           8,643           8,641              95              98
GB Yellowtail Flounder..........................             167             167               3               3
SNE/MA Yellowtail Flounder......................              34              34               8               8
CC/GOM Yellowtail Flounder......................             381             381              18              17
American Plaice.................................           1,550           1,552              29              28
Witch Flounder..................................             830             811              19              18
GB Winter Flounder..............................             725             725               6               6
GOM Winter Flounder.............................             339             339              18              18
SNE/MA Winter Flounder..........................             456             456              62              62
Redfish.........................................          10,696          10,705              59              50
White Hake......................................           2,713           2,715              22              21
Pollock.........................................          37,163          37,170             237             230
N. Windowpane Flounder..........................              na              na              63              63
S. Windowpane Flounder..........................              na              na              53              53
Ocean Pout......................................              na              na              94              94
Atlantic Halibut................................              na              na              77              77
Atlantic Wolffish...............................              na              na              82              82
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    Sector regulations at 50 CFR 648.87(c) require us to adjust ACE 
carryover to ensure that the total unused ACE combined with the overall 
sub-ACL does not exceed the acceptable biological catch (ABC) for the 
fishing year in which the carryover may be harvested. We have completed 
2017 fishing year data reconciliation with sectors and determined final 
2017 fishing year sector catch and the amount of allocation that 
sectors may carry over from the 2017 to the 2018 fishing year. A sector 
may carry over up to 10 percent of unused ACE for each stock, except in 
instances where the amount of unused ACE was reduced so as not to 
exceed the ABC. Accordingly, fishing year 2017 carryover to 2018 was 
reduced for the following stocks: Georges Bank haddock; Gulf of Maine 
haddock; Southern New England/Mid-Atlantic yellowtail flounder; Cape 
Cod/Gulf of Maine yellowtail flounder; American plaice; witch flounder; 
Georges Bank winter flounder; Gulf of Maine winter flounder; Southern 
New England/Mid-Atlantic winter flounder; redfish; white hake; and 
pollock. Complete details on carryover reduction percentages can be 
found at: https://www.greateratlantic.fisheries.noaa.gov/ro/fso/reports/Groundfish_Catch_Accounting.htm. Table 2 includes the maximum 
amount of allocation that sectors may carry over from the 2017 to the 
2018 fishing year.
    Table 3 includes the de minimis amount of carryover for each sector 
for the 2018 fishing year. If the overall ACL for any allocated stock 
is exceeded for the 2018 fishing year, the allowed carryover harvested 
by a sector, minus the pounds in the sector's de minimis amount, will 
be counted against its allocation to determine whether an overage 
subject to an accountability measure occurred. Tables 4 and 5 list the 
final ACE available to sectors for the 2018 fishing year, including 
finalized carryover amounts for each sector, as adjusted down when 
necessary to equal each stock's ABC.
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    This rule also adjusts the common pool allocation based on fishing 
year 2018 final rosters. The common pool sub-ACL for each stock (except 
for SNE/

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MA winter flounder, windowpane flounder, ocean pout, Atlantic wolffish, 
and Atlantic halibut) is divided into trimester total allowable catches 
(TAC). In addition, Framework 57 specified incidental catch limits (or 
incidental total allowable catches, ``Incidental TACs'') applicable to 
the common pool and groundfish Special Management Programs for the 2018 
fishing year, including the B day-at-sea (DAS) Program. Because the 
Trimester and incidental TACs are based on the common-pool allocation, 
they also must be revised to match the final common pool allocation. 
Final common pool trimester quotas and incidental catch limits are 
included in Tables 6-10 below.

                                               Table 6--Final Fishing Year 2018 Common Pool Trimester TACs
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                                                                       Percentage of sub-ACL                          2018 Trimester TAC (mt)
                          Stock                          -----------------------------------------------------------------------------------------------
                                                            Trimester 1     Trimester 2     Trimester 3     Trimester 1     Trimester 2     Trimester 3
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GB Cod..................................................              28              34              38             6.8             8.2             9.2
GOM Cod.................................................              49              33              18             5.8             3.9             2.1
GB Haddock..............................................              27              33              40            86.1           105.2           127.5
GOM Haddock.............................................              27              26              47            26.3            25.4            45.9
GB Yellowtail Flounder..................................              19              30              52             0.5             0.8             1.3
SNE/MA Yellowtail Flounder..............................              21              28              51             1.7             2.3             4.2
CC/GOM Yellowtail Flounder..............................              57              26              17             9.7             4.4             2.9
American Plaice.........................................              74               8              18            20.6             2.2             5.0
Witch Flounder..........................................              55              20              25            10.1             3.7             4.6
GB Winter Flounder......................................               8              24              69             0.5             1.4             4.1
GOM Winter Flounder.....................................              37              38              25             6.5             6.7             4.4
Redfish.................................................              25              31              44            12.5            15.5            22.1
White Hake..............................................              38              31              31             7.8             6.4             6.4
Pollock.................................................              28              35              37            64.4            80.5            85.1
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      Table 7--Fishing Year 2018 Common Pool Incidental Catch TACs
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                                           Percentage of
                  Stock                     common pool      2018 (mt)
                                              sub-ACL
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GB cod..................................               2            0.55
GOM cod.................................               1            0.12
GB yellowtail flounder..................               2            0.05
CC/GOM yellowtail flounder..............               1            0.17
American Plaice.........................               5            1.39
Witch Flounder..........................               5            0.92
SNE/MA winter flounder..................               1            0.62
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          Table 8--Distribution of Common Pool Incidental Catch TACs to Each Special Management Program
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                                                                   Closed area I
                                                   Regular B DAS     hook gear     Eastern U.S./     Southern
                      Stock                         program (%)     haddock SAP   CA haddock SAP  closed area II
                                                                        (%)             (%)         haddock SAP
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GB cod..........................................              50              16              34              NA
GOM cod.........................................             100              NA              NA              NA
GB yellowtail flounder..........................              50              NA              50              NA
CC/GOM yellowtail flounder......................             100              NA              NA              NA
American Plaice.................................             100              NA              NA              NA
Witch Flounder..................................             100              NA              NA              NA
SNE/MA winter flounder..........................             100              NA              NA              NA
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      Table 9--Fishing Year 2018 Common Pool Incidental Catch TACs for Each Special Management Program (mt)
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                                                                                   Closed area I   Eastern U.S./
                              Stock                                Regular B DAS     hook gear    Canada haddock
                                                                      program       haddock SAP         SAP
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GB cod..........................................................            0.28            0.09            0.19
GOM cod.........................................................            0.12             n/a             n/a
GB yellowtail flounder..........................................            0.03             n/a            0.03
CC/GOM yellowtail flounder......................................            0.17             n/a             n/a
American Plaice.................................................            1.39             n/a             n/a
Witch Flounder..................................................            0.92             n/a             n/a

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SNE/MA winter flounder..........................................            0.62             n/a             n/a
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       Table 10--Fishing year 2018 Common Pool Regular B DAS Program Quarterly Incidental Catch TACs (mt)
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                                                    1st quarter     2nd quarter     3rd quarter     4th quarter
                      Stock                            (13%)           (29%)           (29%)           (29%)
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GB cod..........................................            0.04            0.08            0.08            0.08
GOM cod.........................................            0.02            0.03            0.03            0.03
GB yellowtail flounder..........................           0.003           0.007           0.007           0.007
CC/GOM yellowtail flounder......................            0.02            0.05            0.05            0.05
American Plaice.................................            0.18            0.40            0.40            0.40
Witch Flounder..................................            0.12            0.27            0.27            0.27
SNE/MA winter flounder..........................            0.08            0.18            0.18            0.18
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    This action adjusts the New Hampshire Permit Bank's (NHPB) fishing 
year 2018 initial allocation. The NHPB ended fishing year 2017 with a 
3-pound (1.36-kg) Georges Bank West cod overage and a 1-pound (0.45-kg) 
Georges Bank West haddock overage. Table 11 shows the adjustments to 
the NHPB's initial allocation for fishing year 2018 to account for 
these overages.

       Table 11--Adjustments to New Hampshire Permit Bank's Initial Allocations for Fishing Year 2018 (lb)
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                                                                   Fishing year    Fishing year    Fishing year
                              Stock                               2017 year- end   2018 initial    2018 adjusted
                                                                      balance       allocation      allocation
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GB Cod West.....................................................              -3              16              13
GB Haddock West.................................................              -1              21              20
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    Last, this rule confirms the Northeast Fishery Sector IX's (NEFS 9) 
initial allocation of witch flounder for the 2018 fishing year. On July 
20, 2018, NOAA Fisheries published an interim final rule that approved 
sector operations plans and allocated ACE to NEFS 7 and 9 for the 2018 
fishing year (83 FR 34492; July 20, 2018). The interim final rule 
described the requirement for NEFS 9 to payback 72,224-lb (32.7-mt) of 
witch flounder to account for the quota overage incurred in fishing 
year 2017. The data used to determine the payback amount announced in 
the interim final rule were preliminary. After finalizing the year-end 
catch data for sectors, we determined that NEFS 9 ended the 2017 
fishing year with a 71,716 lb (32.5 mt) overage of witch flounder. NEFS 
9 transferred in 71,716 lb (32.5 mt) of witch flounder quota to 
reconcile the overage during the fishing year 2017 post-year ACE 
trading window. NEFS 9 does not have any witch flounder to carry over 
into fishing year 2018 and the permits enrolled in NEFS 9 for fishing 
year 2018 have zero ACE for witch flounder. Therefore, the sector's 
initial allocation of witch flounder for fishing year 2018 remains at 
zero pounds.

Classification

    The NMFS Assistant Administrator has determined that this final 
rule is consistent with the Northeast Multispecies Fishery Management 
Plan, other provisions of the Magnuson-Stevens Fishery Conservation and 
Management Act, and other applicable law.
    This action is exempt from the procedures of Executive Order 12866 
because this action contains no implementing regulations.
    Pursuant to 5 U.S.C. 553(b)(3)(B), we find good cause to waive 
prior public notice and opportunity for public comment on the catch 
limit and allocation adjustments because allowing time for notice and 
comment is impracticable, unnecessary, and contrary to the public 
interest. We also find good cause to waive the 30-day delay in 
effectiveness pursuant to 5 U.S.C. 553(d)(3), so that this final rule 
may become effective upon filing.
    There are several reasons that notice and comment and a 30-day 
delay in effectiveness are impracticable, unnecessary, and contrary to 
the public interest. First, the proposed and final rules for Framework 
57 explained the need and likelihood for adjustments of sector and 
common pool allocations based on final sector rosters. No comments were 
received on the potential for these adjustments, which provide an 
accurate accounting of a sector's or common pool's allocation. Second, 
this is an annual adjustment action that is expected by industry. These 
adjustments are routine and formulaic, required by regulation, or 
necessary to match allocations to sector enrollment. Finally, immediate 
implementation corrects the information published in Framework 57 and 
provides sector and common pool vessels with catch limit information 
that reflects their actual final allocations. Delaying these 
adjustments, which provide an accurate accounting of the sector and 
common pool allocations, could cause confusion to both sectors and the 
common pool.
    Also, because advanced notice and the opportunity for public 
comment are not required for this action under the

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Administrative Procedure Act, or any other law, the analytical 
requirements of the Regulatory Flexibility Act, 5 U.SC. 601, et seq., 
do not apply to this rule. Therefore, no final regulatory flexibility 
analysis is required and none has been prepared.

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

Samuel D. Rauch III,
Deputy Assistant Administrator for Regulatory Programs, National Marine 
Fisheries Service.
[FR Doc. 2019-00979 Filed 2-4-19; 8:45 am]
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