[Federal Register Volume 84, Number 82 (Monday, April 29, 2019)]
[Rules and Regulations]
[Pages 17960-17966]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2019-08611]


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DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

50 CFR Part 300

[Docket No. 181022969-9377-02]
RIN 0648-BI55


Pacific Halibut Fisheries; Catch Sharing Plan

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

ACTION: Final rule.

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SUMMARY: This final rule implements the Pacific Halibut Catch Sharing 
Plan for the International Pacific Halibut Commission's regulatory Area 
2A off Washington, Oregon, and California. In addition, this final rule 
implements portions of the Catch Sharing Plan and management measures 
that are not implemented through the International Pacific Halibut 
Commission. These measures include the recreational fishery seasons and 
management measures for Area 2A. These actions are intended to conserve 
Pacific halibut and provide angler opportunity where available.

DATES: This rule is effective on April 29, 2019.

ADDRESSES: Additional information regarding this action may be obtained 
by contacting the Sustainable Fisheries Division, NMFS West Coast 
Region, 7600 Sand Point Way NE, Seattle, WA 98115. For information 
regarding all halibut fisheries and general regulations not contained 
in this rule contact the International Pacific Halibut Commission, 2320 
W Commodore Way, Suite 300, Seattle, WA 98199-1287. Electronic copies 
of the Regulatory Impact Review (RIR) and Final Regulatory Flexibility 
Analysis (FRFA) prepared for this action may be obtained by contacting 
Kathryn Blair, phone:

[[Page 17961]]

503-231-6858, email: [email protected].

FOR FURTHER INFORMATION CONTACT: Kathryn Blair, phone: 503-231-6858, 
fax: 503-231-6893, or email: [email protected].

SUPPLEMENTARY INFORMATION:

Background

    The Northern Pacific Halibut Act (Halibut Act) of 1982 gives the 
Secretary of Commerce responsibility for implementing the provisions of 
the Halibut Convention between the United States and Canada. 16 U.S.C. 
773-773k. The Halibut Act requires that the Secretary adopt regulations 
to carry out the purposes and objectives of the Halibut Convention and 
Halibut Act 16 U.S.C. 773(c). The Halibut Act also authorizes the 
regional fishery management councils to develop regulations in addition 
to, but not in conflict with, regulations of the International Pacific 
Halibut Commission (IPHC) to govern the Pacific halibut catch in their 
corresponding U.S. Convention waters. 16 U.S.C. 773c(c).
    At its annual meeting in February 2019, the IPHC recommended an 
Area 2A catch limit of 1,500,000 lb (680.4 metric tons (mt)) for 2019. 
This catch limit is derived from the total constant exploitation yield 
(TCEY) of 1,650,000 lb (748.4 mt), which includes commercial discards 
and bycatch estimates calculated using a formula developed by the IPHC. 
The table below shows the fishery and subarea allocations resulting 
from the framework described in the 2019 Area 2A Catch Sharing Plan.

  Table 1--Area 2A Catch Limit and Fishery Subarea Allocations for 2019
------------------------------------------------------------------------
                                              Pounds        Metric tons
------------------------------------------------------------------------
Area 2A TCEY............................       1,650,000           748.4
Area 2A Catch Limit.....................       1,500,000           680.4
Tribal commercial fishery...............         497,000           225.4
Incidental commercial catch during                70,000            31.8
 sablefish fishery......................
Non-tribal directed commercial fishery..         254,426           115.4
Incidental commercial catch during                44,899            20.4
 salmon troll fishery...................
Washington recreational fishery--Puget            77,550            35.2
 Sound..................................
Washington recreational fishery--North           128,187            58.1
 Coast..................................
Washington recreational fishery--South            62,896            28.5
 Coast..................................
Columbia River recreational fishery.....          15,127             6.9
Oregon recreational fishery--Central             271,592           123.2
 Oregon.................................
Oregon recreational fishery--Southern             11,322             5.1
 Oregon.................................
California recreational fishery.........          39,000            17.7
------------------------------------------------------------------------

    The Area 2A catch limit, tribal commercial fishery allocation, and 
commercial fishery allocations are adopted by the IPHC and were 
published in the Federal Register on March 14, 2019 (84 FR 9243) after 
acceptance by the Secretary of State in accordance with 50 CFR 300.62.
    Since 1988, NMFS has implemented annual Catch Sharing Plans that 
allocate the IPHC regulatory Area 2A Pacific halibut catch limit 
between treaty Indian and non-Indian harvesters, and among non-Indian 
commercial and recreational (sport) fisheries. The Pacific Fishery 
Management Council (Council) develops Catch Sharing Plans in accordance 
with the Halibut Act. In 1995, the Council recommended, and NMFS 
approved and implemented a long-term Area 2A Catch Sharing Plan (60 FR 
14651; March 20, 1995). NMFS has been implementing adjustments to the 
Area 2A Catch Sharing Plan based on Council recommendations each year 
to address the changing needs of these fisheries. While the full Catch 
Sharing Plan is not published in the Federal Register, it is made 
available on the Council and NMFS websites.
    This rule adopts the Council's recommended changes to the Catch 
Sharing Plan for IPHC regulatory Area 2A, which affect only the 
recreational fishery. In addition, this rule revises the recreational 
Pacific halibut fishery management measures, such as season dates and 
bag limits, set in NMFS regulations and described in the proposed rule 
(84 FR 9281; March 14, 2019). These management measures are detailed in 
the Council's recommended Catch Sharing Plan and were developed through 
the Council's public process. This rule finalizes 2019 dates for the 
recreational fisheries consistent with the Council's recommendations as 
well as recommendations from Oregon, Washington, and California that 
were received either during the Council process or during the comment 
period for the proposed rule.
    For 2019, the Council recommended minor modifications to 
recreational (sport) fisheries to better match the needs of the 
fishery. On March 14, 2019, NMFS published a proposed rule to approve 
the Council's recommended changes to the 2019 Catch Sharing Plan and 
recreational management measures for Area 2A (84 FR 9281). This final 
rule includes these components of the proposed rule. The Catch Sharing 
Plan changes provide flexibility to the state recreational fishery 
managers for opening the South Coast nearshore fishery and for 
extending the Columbia River fishery into the summer by both modifying 
the number of open days and the process for setting open days.

Incidental Halibut Retention in the Sablefish Primary Fishery North of 
Pt. Chehalis, WA

    The 2019 Catch Sharing Plan allows incidental halibut retention in 
the sablefish primary fishery north of Pt. Chehalis, WA, when the 
Washington recreational catch limit is 214,110 lb (101.7 mt) or 
greater, provided that a minimum of 10,000 lb (4.5 mt) is available. 
The Area 2A catch limit for 2019 is great enough to allow 70,000 lb 
(31.8 mt) for incidental halibut retention in the sablefish primary 
fishery, which occurs when the catch limit is 1,500,000 lb (680.4 mt) 
or more. Incidental halibut landing restrictions in the sablefish 
fishery are recommended by the Council and implemented in the 
groundfish regulations at 50 CFR 660.231(b)(3)(iv).

2019 Recreational Fishery Management Measures

    The annual domestic management measures are published each year 
through a final rule under NMFS' authority to implement the Halibut 
Convention. 50 CFR 300.62. As provided in the Halibut Act at 16 U.S.C. 
773b, the Secretary of State, with the concurrence of the Secretary of 
Commerce, may accept or reject, on behalf of the United States, 
regulations recommended by the IPHC in accordance with the Convention. 
For

[[Page 17962]]

the 2019 fishing season, the final rule for the commercial fisheries 
and IPHC regulations was published on March 14, 2019 (84 FR 9243). The 
section numbers below correspond to IPHC regulation sections in the 
March 14, 2019, final rule.
    The recreational fishing regulations for Area 2A, included in 
section 27 (referring to the relevant section of the IPHC regulations) 
below, are consistent with the measures adopted by the IPHC and 
approved by the Secretary of State, but were developed by the Council 
and promulgated by the United States under the Halibut Act.
    This rule adds the following text to Section 27 of the annual 
domestic management measures and paragraph (8) of the 2019 IPHC 
regulations, ``Sport Fishing for Pacific Halibut--IPHC Regulatory Area 
2A'':
    (8) The sport fishing subareas, subquotas, fishing dates, and daily 
bag limits are as follows, except as modified under the inseason 
actions consistent with 50 CFR 300.63(c). All sport fishing in Area 2A 
is managed on a ``port of landing'' basis, whereby any halibut landed 
into a port counts toward the quota for the area in which that port is 
located, and the regulations governing the area of landing apply, 
regardless of the specific area of catch.
    (a) The quota for the area in Puget Sound and the U.S. waters in 
the Strait of Juan de Fuca, east of a line extending from 48[deg]17.30' 
N lat., 124[deg]23.70' W long. north to 48[deg]24.10' N lat., 
124[deg]23.70' W long., is 77,550 lb (35.2 mt).
    (i) The fishing seasons are:
    (A) Fishing is open May 2, 4, 9, 11, 18, 24, and 26; June 6, 8, 20, 
and 22, or until there is not sufficient quota for another full day of 
fishing and the area is closed by the Commission. Any closure will be 
announced on the NMFS hotline at 800-662-9825.
    (ii) The daily bag limit is one halibut of any size per day per 
person.
    (b) The quota for landings into ports in the area off the north 
Washington coast, west of the line described in paragraph (2)(a) of 
section 26 and north of the Queets River (47[deg]31.70' N lat.) (North 
Coast subarea), is 128,187 lb (58.1 mt).
    (i) The fishing seasons are:
    (A) Fishing is open May 2, 4, 9, 11, 18, 24, and 26; June 6, 8, 20, 
and 22, or until there is not sufficient quota for another full day of 
fishing and the area is closed by the Commission. Any closure will be 
announced on the NMFS hotline at 800-662-9825.
    (ii) The daily bag limit is one halibut of any size per day per 
person.
    (iii) Recreational fishing for groundfish and halibut is prohibited 
within the North Coast Recreational Yelloweye Rockfish Conservation 
Area (YRCA). It is unlawful for recreational fishing vessels to take 
and retain, possess, or land halibut taken with recreational gear 
within the North Coast Recreational YRCA. A vessel fishing with 
recreational gear in the North Coast Recreational YRCA may not be in 
possession of any halibut. Recreational vessels may transit through the 
North Coast Recreational YRCA with or without halibut on board. The 
North Coast Recreational YRCA is a C-shaped area off the northern 
Washington coast intended to protect yelloweye rockfish. The North 
Coast Recreational YRCA is defined in groundfish regulations at 50 CFR 
660.70(a).
    (c) The quota for landings into ports in the area between the 
Queets River, WA (47[deg]31.70' N lat.), and Leadbetter Point, WA 
(46[deg]38.17' N lat.) (South Coast subarea), is 62,896 lb (28.5 mt).
    (i) This subarea is divided between the all-waters fishery (the 
Washington South coast primary fishery), and the incidental nearshore 
fishery in the area from 47[deg]31.70' N lat. south to 46[deg]58.00' N 
lat. and east of a boundary line approximating the 30 fm depth contour. 
This area is defined by straight lines connecting all of the following 
points in the order stated as described by the following coordinates 
(the Washington South coast, northern nearshore area):
(1) 47[deg]31.70' N lat., 124[deg]37.03' W long.;
(2) 47[deg]25.67' N lat., 124[deg]34.79' W long.;
(3) 47[deg]12.82' N lat., 124[deg]29.12' W long.;
(4) 46[deg]58.00' N lat., 124[deg]24.24' W long.
    The primary fishery season dates are May 2, 5, 9, 12, and 24, or 
until there is not sufficient quota for another full day of fishing and 
the area is closed by the Commission. Any closure will be announced on 
the NMFS hotline at 800-662-9825. If sufficient quota remains, the 
fishing season in the nearshore area commences the Saturday subsequent 
to the closure of the primary fishery, and continues 7 days per week 
until 62,896 lb (28.5 mt) is projected to be taken by the two fisheries 
combined and the fishery is closed by the Commission or September 30, 
whichever is earlier. If the fishery is closed prior to September 30, 
and there is insufficient quota remaining to reopen the northern 
nearshore area for another fishing day, then any remaining quota may be 
transferred in-season to another Washington coastal subarea by NMFS.
    (ii) The daily bag limit is one halibut of any size per day per 
person.
    (iii) Seaward of the boundary line approximating the 30-fm depth 
contour and during days open to the primary fishery, lingcod may be 
taken, retained and possessed when allowed by groundfish regulations at 
50 CFR 660.360, subpart G.
    (iv) Recreational fishing for groundfish and halibut is prohibited 
within the South Coast Recreational YRCA and Westport Offshore YRCA. It 
is unlawful for recreational fishing vessels to take and retain, 
possess, or land halibut taken with recreational gear within the South 
Coast Recreational YRCA and Westport Offshore YRCA. A vessel fishing in 
the South Coast Recreational YRCA and/or Westport Offshore YRCA may not 
be in possession of any halibut. Recreational vessels may transit 
through the South Coast Recreational YRCA and Westport Offshore YRCA 
with or without halibut on board. The South Coast Recreational YRCA and 
Westport Offshore YRCA are areas off the southern Washington coast 
established to protect yelloweye rockfish. The South Coast Recreational 
YRCA is defined at 50 CFR 660.70(d). The Westport Offshore YRCA is 
defined at 50 CFR 660.70(e).
    (d) The quota for landings into ports in the area between 
Leadbetter Point, WA (46[deg]38.17' N lat.), and Cape Falcon, OR 
(45[deg]46.00' N lat.) (Columbia River subarea), is 15,127 lb (6.9 mt).
    (i) This subarea is divided into an all-depth fishery and a 
nearshore fishery. The nearshore fishery is allocated 500 lb (0.23 mt) 
of the subarea allocation. The nearshore fishery extends from 
Leadbetter Point (46[deg]38.17' N lat., 124[deg]15.88' W long.) to the 
Columbia River (46[deg]16.00' N lat., 124[deg]15.88' W long.) by 
connecting the following coordinates in Washington 46[deg]38.17' N 
lat., 124[deg]15.88' W long. 46[deg]16.00' N lat., 124[deg]15.88' W 
long. and connecting to the boundary line approximating the 40 fm (73 
m) depth contour in Oregon. The nearshore fishery opens May 6, and 
continues on Monday, Tuesday, and Wednesday each week until the 
nearshore allocation is taken, or September 30, whichever is earlier. 
The all-depth fishing season is open May 2, 5, 9, 12, 24, and 26. If 
sufficient quota remains after May 26, the Columbia River subarea would 
be open two days per week (Thursday and Sunday) until 15,127 lb (6.9 
mt) are estimated to have been taken and the season is closed by the 
Commission, or September 30, whichever is earlier. Subsequent to this 
closure, if there is insufficient quota remaining in the Columbia River 
subarea for another fishing day, then any remaining quota may be 
transferred inseason to another Washington and/or Oregon subarea by 
NMFS. Any remaining quota would be transferred to each state in 
proportion to its contribution.

[[Page 17963]]

    (ii) The daily bag limit is one halibut of any size per day per 
person.
    (iii) Pacific Coast groundfish may not be taken and retained, 
possessed or landed when halibut are on board the vessel, except 
sablefish, Pacific cod, flatfish species, and lingcod caught north of 
the Washington-Oregon border during the recreational halibut fishery, 
when allowed by Pacific Coast groundfish regulations, during days open 
to the all-depth fishery only.
    (iv) Taking, retaining, possessing, or landing halibut on 
groundfish trips is only allowed in the nearshore area on days not open 
to all-depth Pacific halibut fisheries.
    (e) The quota for landings into ports in the area off Oregon 
between Cape Falcon (45[deg]46.00' N lat.) and Humbug Mountain 
(42[deg]40.50' N lat.) (Oregon Central Coast subarea), is 271,592 lb 
(123.2 mt).
    (i) The fishing seasons are:
    (A) The first season (the ``inside 40-fm'' fishery) commences June 
1, and continues 7 days a week, in the area shoreward of a boundary 
line approximating the 40-fm (73-m) depth contour, or until the sub-
quota for the central Oregon ``inside 40-fm'' fishery of 32,591 lb 
(14.8 mt), or any inseason revised subquota, is estimated to have been 
taken and the season is closed by the Commission, or October 31, 
whichever is earlier. The boundary line approximating the 40-fm (73-m) 
depth contour between 45[deg]46.00' N lat. and 42[deg]40.50' N lat. is 
defined at Sec.  660.71(k).
    (B) The second season (spring season), which is for the ``all-
depth'' fishery, is open May 9, 10, 11; 16, 17, 18; 23, 24, 25; 30, 31, 
June 1; and 6, 7, 8. The allocation to the all-depth fishery is 171,103 
lb (77.6 mt). If sufficient unharvested quota remains for additional 
fishing days, the season will re-open June 20, 21, 22; July 4, 5, 6; 
and July 18, 19, 20. Notice of the re-opening will be announced on the 
NMFS hotline (206) 526-6667 or (800) 662-9825.
    (C) The third season (summer season), which is for the ``all-
depth'' fishery, will be August 2, 3; 16, 17; 30, 31; September 13, 14; 
27, 28; October 11, 12; and 25, 26; and will continue until the 
combined spring season and summer season quotas in the area between 
Cape Falcon and Humbug Mountain, Oregon, are estimated to have been 
taken and the area is closed by the Commission. NMFS will announce on 
the NMFS hotline in July whether the fishery will re-open for the 
summer season in August. Additional fishing days may be opened if 
sufficient quota remains after the last day of the first scheduled open 
period. If, after this date, an amount greater than or equal to 60,000 
lb (27.2 mt) remains in the combined all-depth and inside 40-fm (73-m) 
quota, the fishery may re-open every Friday and Saturday, beginning 
August 2 and 3, and ending when there is insufficient quota remaining, 
whichever is earlier. If after September 3, an amount greater than or 
equal to 30,000 lb (13.6 mt) remains in the combined all-depth and 
inside 40-fm (73-m) quota, and the fishery is not already open every 
Friday and Saturday, the fishery may re-open every Friday and Saturday, 
beginning September 6 and 7, and ending October 31. After September 3, 
the bag limit may be increased to two fish of any size per person, per 
day. NMFS will announce on the NMFS hotline whether the summer all-
depth fishery will be open on such additional fishing days, what days 
the fishery will be open and what the bag limit is.
    (ii) The daily bag limit is one halibut of any size per day per 
person, unless otherwise specified. NMFS will announce on the NMFS 
hotline any bag limit changes.
    (iii) During days open to all-depth halibut fishing when the 
groundfish fishery is restricted by depth, no groundfish may be taken 
and retained, possessed or landed, when halibut are on board the 
vessel, except sablefish, Pacific cod, and flatfish species, when 
allowed by groundfish regulations, if halibut are on board the vessel. 
During days open to all-depth halibut fishing when the groundfish 
fishery is open to all depths, any groundfish species permitted under 
the groundfish regulations may be retained, possessed or landed if 
halibut are on board the vessel. During days open to nearshore halibut 
fishing, flatfish species may be taken and retained seaward of the 
seasonal groundfish depths restrictions, if halibut are on board the 
vessel.
    (iv) When the all-depth halibut fishery is closed and halibut 
fishing is permitted only shoreward of a boundary line approximating 
the 40-fm (73-m) depth contour, halibut possession and retention by 
vessels operating seaward of a boundary line approximating the 40-fm 
(73-m) depth contour is prohibited.
    (v) Recreational fishing for groundfish and halibut is prohibited 
within the Stonewall Bank YRCA. It is unlawful for recreational fishing 
vessels to take and retain, possess, or land halibut taken with 
recreational gear within the Stonewall Bank YRCA. A vessel fishing in 
the Stonewall Bank YRCA may not possess any halibut. Recreational 
vessels may transit through the Stonewall Bank YRCA with or without 
halibut on board. The Stonewall Bank YRCA is an area off central 
Oregon, near Stonewall Bank, intended to protect yelloweye rockfish. 
The Stonewall Bank YRCA is defined at Sec.  660.70(f).
    (f) The quota for landings into ports in the area south of Humbug 
Mountain, OR (42[deg]40.50' N lat.) to the Oregon/California Border 
(42[deg]00.00' N lat.) (Southern Oregon subarea) is 11,322 lb (5.1 mt).
    (i) The fishing season commences on May 1, and continues 7 days per 
week until the subquota is taken, or October 31, whichever is earlier.
    (ii) The daily bag limit is one halibut per person with no size 
limit.
    (iii) No Pacific Coast groundfish may be taken and retained, 
possessed or landed, except sablefish, Pacific cod, and flatfish 
species, in areas closed to groundfish, if halibut are on board the 
vessel.
    (g) The quota for landings into ports south of the Oregon/
California Border (42[deg]00.00' N lat.) and along the California coast 
is 39,000 lb (17.7 mt).
    (i) The fishing season will be open May 1 through October 31, or 
until the subarea quota is estimated to have been taken and the season 
is closed by the Commission, whichever is earlier. NMFS will announce 
any closure by the Commission on the NMFS hotline (206) 526-6667 or 
(800) 662-9825.
    (ii) The daily bag limit is one halibut of any size per day per 
person.

Comments and Responses

    NMFS accepted public comments on the Council's recommended 
modifications to the 2019 Area 2A Catch Sharing Plan and the resulting 
proposed domestic fishing regulations through March 29, 2019. We 
received two comments from state agencies--the California Department of 
Fish and Wildlife (CDFW) and the Washington Department of Fish and 
Wildlife (WDFW).
    Comment 1: CDFW submitted a comment recommending final recreational 
fishing season dates for the 2019 season. CDFW hosted an online survey 
following the IPHC annual meeting. Based on public comments received on 
California halibut fisheries and fishing performance in recent years, 
CDFW recommended season dates of May 1-October 31, or until quota has 
been attained, whichever comes first.
    Response: NMFS concurs that the CDFW-recommended season dates are 
appropriate. The Area 2A catch limit is significantly higher than in 
the recent past and the season structure recommended by CDFW, which 
removes closed periods that were in effect in past years, should allow 
California to fully utilize its allocation.

[[Page 17964]]

NMFS has updated sport fishery season dates off of California in this 
final rule.
    Comment 2: WDFW submitted a comment suggesting a revision to the 
Catch Sharing Plan. WDFW provided its preferred season dates and 
suggested Catch Sharing Plan changes at the November Council meeting, 
prior to the IPHC's recommended Area 2A catch limit. The IPHC agreed on 
an Area 2A catch limit in early February 2019 that was higher than 
anticipated in November 2018, when the Council recommended Catch 
Sharing Plan changes and season dates. WDFW commented that the 2019 
FCEY is 26 percent higher than in 2018, and that it anticipates needing 
more than two fishing days per week, as set forth under the Catch 
Sharing Plan, to ensure that sport fishery participants can catch the 
entire allocation. To allow for the additional fishing days, WDFW 
suggests adjusting the Catch Sharing Plan language. The Catch Sharing 
Plan includes language for recreational fisheries in Washington 
subareas that states ``seasons . . . may be open up to two days per 
week which may include one weekday and one weekend day.'' WDFW 
suggested removing the language specifying two days per week from the 
Catch Sharing Plan to provide flexibility for additional fishing days.
    Response: The Catch Sharing Plan is a framework that details 
allocations and season structure. The Catch Sharing Plan forms the 
basis for season dates as recommended by the states after discussion 
with stakeholders, and allocations resulting from the 2A catch limit. 
It is a document created by the Council and is not subject to NMFS 
approval. NMFS may implement the Catch Sharing Plan through its 
regulations, but lacks authority to alter or amend the Council's 
approved Plan.
    WDFW's comment requests that NMFS revise the Catch Sharing Plan to 
remove language that allows for a maximum of two fishing days per week 
in the Washington subareas. NMFS is unable to revise the Catch Sharing 
Plan, but does have the authority to make revisions to the regulations 
under flexible inseason management provisions, described in the Catch 
Sharing Plan, and implemented in regulation at 50 CFR 300.63.

Changes From the Proposed Rule

    As described in the response to Comment 1 above, NMFS changed 
season dates off of California in this final rule.

Classification

    Regulations governing the U.S. fisheries for Pacific halibut are 
developed by the IPHC, the Pacific Fishery Management Council, the 
North Pacific Fishery Management Council, and the Secretary of 
Commerce. Section 5 of the Halibut Act of 1982 (Halibut Act, 16 U.S.C. 
773c) provides the Secretary of Commerce with the general 
responsibility to carry out the Halibut Convention between Canada and 
the United States for the management of Pacific halibut, including the 
authority to adopt regulations as may be necessary to carry out the 
purposes and objectives of the Halibut Convention and Halibut Act. This 
action is consistent with the Secretary's authority under the Halibut 
Act.
    This final rule has been determined to be not significant for 
purposes of Executive Order 12866. This final rule is not expected to 
be an Executive Order 13771 regulatory action because this action is 
not significant under Executive Order 12866.
    This final rule does not contain policies with federalism or 
``takings'' implications as those terms are defined in E.O. 13132 and 
E.O. 12630, respectively.
    NMFS finds good cause to waive the 30-day delay in the date of 
effectiveness and make this rule effective on April 29, 2019, in time 
for the start of recreational Pacific halibut fisheries on May 1, 2019, 
pursuant to 5 U.S.C. 553(d)(3). The 2019 Catch Sharing Plan provides 
the framework for the annual management measures and subarea 
allocations based on the 2019 Area 2A catch limit for Pacific halibut. 
Some recreational fishery subareas open May 1, 2019, and this rule 
implements subarea allocations for those fisheries. Additionally, this 
rule implements a change to the Catch Sharing Plan season structure for 
the Washington South Coast and Columbia River subareas, which start in 
early May.
    The Council's 2019 Catch Sharing Plan approved in this rule 
includes changes that respond to the needs of the fisheries in each 
state, including fisheries that begin in early May. The recreational 
fishery subarea allocations for 2019 are 26 percent higher than in 
2018, and are implemented through this rule. The recreational Pacific 
halibut fisheries have high participation, and some subareas close 
months before the end of the season due to quota attainment. Without 
the higher allocation, fishing opportunity is lost, potentially causing 
economic harm to communities at sport fishing ports. Additionally, the 
season dates in this rule are specific to 2019 according to the Catch 
Sharing Plan framework. Without the publication of this rule, the 2018 
season dates would remain in place, and would not occur on the days of 
the week specified in the Catch Sharing Plan. This year, the Council 
recommended modifying the season dates for the Columbia River subarea 
from three to two days per week, and this rule is necessary to 
implement that change; otherwise the fishery, which is scheduled to 
begin May 2, may close sooner than intended. The season lasted only 
five days last year, and if the 2018 season remained in place for 2019, 
the fishery would likely conclude before the third week in May.
    Therefore, allowing the 2018 Catch Sharing Plan to remain in place 
would not respond to the needs of the fishery and would be in conflict 
with the Council's final recommendation for 2019. A delay in 
effectiveness could cause economic harm to the associated fishing 
communities by reducing fishing opportunity at the start of the fishing 
year. As a result of the potential harm to fishing communities that 
could be caused by delaying the effectiveness of this final rule, NMFS 
finds good cause to waive the 30-day delay in the date of effectiveness 
and make this rule effective upon publication in the Federal Register.

Final Regulatory Flexibility Analysis

    Section 604 of the Regulatory Flexibility Act (RFA), 5 U.S.C. 604, 
requires Federal agencies to prepare a Final Regulatory Flexibility 
Analysis (FRFA) for each final rule. The FRFA describes the economic 
impact of this action on small entities. The FRFA includes a summary of 
significant issues raised by public comments, the analyses contained in 
the accompanying Environmental Assessment/Regulatory Impact Review/
Initial Regulatory Flexibility Analysis (IRFA), the IRFA summary in the 
proposed rule, as well as the summary provided below. A statement of 
the necessity for, and the objectives of this action are contained in 
proposed rule and in the preamble to this final rule, and is not 
repeated here.
    A statement of the significant issues raised by the public comments 
in response to the IRFA, a statement of the assessment of the agency of 
such issues, and a statement of any changes made in the proposed rule 
as a result of such comments.
    There were no issues raised about the IRFA in the public comments.
    The response of the agency to any comments filed by the Chief 
Counsel for Advocacy in response to the proposed rule, and a detailed 
statement of any change made to the proposed rule in the final rule as 
a result of the comments.
    There were no comments filed by the Chief Counsel for Advocacy.

[[Page 17965]]

    A description and, where feasible, estimate of the number of small 
entities to which the final rule applies.
    This action makes changes only to the sport fishing sector of the 
halibut fishery. Therefore, this rule may affect some charterboat 
operations in Area 2A. Previous analyses determined that charterboats 
are small businesses. See 77 FR 5477 (Feb. 3, 2012) and 76 FR 2876 
(Jan. 18, 2011). Charter fishing operations are classified under NAICS 
code 487210, with a corresponding SBA size standard not in excess of 
$7.5 million in annual receipts. No commercial fishing entities are 
directly affected by this rule.
    In 2018, the IPHC issued 133 licenses to the charterboat fleet. 
Recent information on charterboat activity is not available, but prior 
analysis indicated that 60 percent of the IPHC charterboat license 
holders (around 80 vessels) may be affected by these regulations. 
Private vessels used for recreational fishing are not businesses, and 
are therefore not subject to the RFA.
    Reporting and recordkeeping requirements.
    The changes to the Catch Sharing Plan and domestic management 
measures do not include any new reporting or recordkeeping 
requirements.
    Description and estimate of economic effects on entities, by entity 
size and industry.
    The major effect of halibut management on small entities will be 
from the catch limit decisions made by the IPHC, a decision independent 
from this action. This action only makes minor changes to the Catch 
Sharing Plan to provide increased recreational opportunities under the 
allocations that result from the Area 2A catch limit. There are no 
large entities involved in the halibut fisheries; therefore, none of 
these changes will have a disproportionately negative effect on small 
entities versus large entities. The changes to the plan are considered 
minor, with minimal economic effects.
    An explanation of the criteria used to evaluate whether the rule 
would impose ``significant'' economic effects.
    The recreational management measures implement the Catch Sharing 
Plan by managing the fisheries to meet the differing fishery needs of 
the various areas along the coast according to the Catch Sharing Plan's 
objectives. These changes were uncontroversial throughout the Council's 
public process and are considered minor because the timing and level of 
participation are not expected to change. The changes to the Catch 
Sharing Plan are not expected to have a significant economic impact on 
a substantial number of small entities.
    An explanation of the criteria used to evaluate whether the rule 
would impose effects on ``a substantial number'' of small entities.
    Participants in the recreational Washington and Columbia River 
subareas will be impacted by these changes, and all of the entities are 
considered small. However, the effects of the rule would be minimal as 
described above. In 2017, the average number of participants in the 
Columbia River subarea was 73 (private vessels and charterboats are not 
differentiated), with the highest number on the first two days and last 
day. Participation in 2019 is expected to be similar.
    A description of, and an explanation of the basis for, assumptions 
used.
    In the description of the entities affected, estimates of the 
number of charterboats were based off a 2004 report by the Pacific 
States Marine Fisheries Commission. This report has not been updated 
and the number of entities is assumed to be similar.
    Relevant Federal rules that may duplicate, overlap or conflict with 
the final rule.
    There are no relevant federal rules that may duplicate, overlap, or 
conflict with this action.
    A description of any significant alternatives to the final rule 
that accomplish the stated objectives of applicable statutes and that 
minimize any significant economic impact of the action on small 
entities.
    There were no significant alternatives to the final rule that would 
minimize any significant impact on small entities. The minor changes, 
including updates to recreational fishery season dates, removing the 
set-aside for the nearshore fishery in the Washington South Coast 
subarea, and modifying the number of open days and the process for 
setting open days in the Columbia River subarea, were proposed by 
stakeholders and recommended by the Council to address the needs of the 
fishery. In developing the minor changes to the Plan that it 
recommended to NMFS, the Council considered and accepted public comment 
on alternatives. In large part, these included ``status quo'' and 
``action'' alternatives, where ``status quo'' represented the 2018 
Plan. Removing the set-aside in the nearshore fishery is not expected 
to impact the fishery, since the South Coast primary fishery has 
exceeded its sub-allocation in previous years, and the nearshore 
fishery has remained closed. Reducing the number of open days in the 
Columbia River subarea from three open days (status quo--open Thursday, 
Friday, and Sunday), to two open days (open a combination of Thursday, 
Friday, or Sunday), is expected to allow the season to stay open 
through the summer. Allowing the season to remain open for three days 
could result in the season ending at an earlier date, which would 
ultimately decrease sport fishing opportunities. The changes to the 
Catch Sharing Plan are expected to slightly increase fishing 
opportunities in some areas and at some times and to slightly decrease 
fishing opportunities in other areas and at other times. None of these 
changes are controversial and none are expected to result in 
substantial environmental or economic impacts. These actions are 
intended to enhance the conservation of Pacific halibut and to provide 
angler opportunity where available. Because the goal of the action is 
to maximize angler participation, and thus to maximize the economic 
benefits of the fishery, NMFS did not analyze alternatives to the above 
changes, other than the Council-proposed changes and the status quo, 
for purposes of the FRFA. Effects of the status quo and the changes in 
this final rule are similar, because the changes to the Catch Sharing 
Plan for 2019 are not substantially different from the 2018 Plan. The 
changes to the Plan are not expected to have a significant economic 
impact.
    Section 212 of the Small Business Regulatory Enforcement Fairness 
Act of 1996 states that, for each rule or group of related rules for 
which an agency is required to prepare a FRFA, the agency shall publish 
one or more guides to assist small entities in complying with the rule, 
and shall designate such publications as ``small entity compliance 
guides.'' The agency shall explain the actions a small entity is 
required to take to comply with a rule or group of rules. As part of 
this rulemaking process, a public notice to fishery participants that 
also serves as a small entity compliance guide (guide) was prepared. 
Copies of this final rule are available from the West Coast Regional 
Office, and the guide will be sent to all stakeholders on the email 
listserv for the groundfish fishery and posted to the West Coast 
groundfish and halibut websites. The guide and this final rule will be 
available upon request from the West Coast Regional Office.
    A copy of this analysis is available from the Council or NMFS (see 
ADDRESSES).
    Pursuant to Executive Order 13175, the Secretary recognizes the 
sovereign status and co-manager role of Indian tribes over shared 
Federal and tribal fishery resources. Section 302(b)(5) of the 
Magnuson-Stevens Fishery Conservation and Management Act establishes a 
seat on the Pacific Council

[[Page 17966]]

for a representative of an Indian tribe with federally recognized 
fishing rights from California, Oregon, Washington, or Idaho.
    The U.S. Government formally recognizes that the 13 Washington 
Tribes have treaty rights to fish for Pacific halibut. In general 
terms, the quantification of those rights is 50 percent of the 
harvestable surplus of Pacific halibut available in the tribes' usual 
and accustomed fishing areas (described at 50 CFR 300.64). Each of the 
treaty tribes has the discretion to administer their fisheries and to 
establish their own policies to achieve program objectives. 
Accordingly, tribal allocations and regulations, including the changes 
to the Catch Sharing Plan, have been developed in consultation with the 
affected tribe(s) and, insofar as possible, with tribal consensus.

    Dated: April 23, 2019.
Samuel D. Rauch III,
Deputy Assistant Administrator for Regulatory Programs, National Marine 
Fisheries Service.
[FR Doc. 2019-08611 Filed 4-26-19; 8:45 am]
BILLING CODE 3510-22-P