[Federal Register Volume 86, Number 214 (Tuesday, November 9, 2021)]
[Proposed Rules]
[Pages 62137-62140]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2021-24513]


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DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

50 CFR Part 622

[Docket No. 211104-0226]
RIN 0648-BK70


Fisheries of the Caribbean, Gulf of Mexico, and South Atlantic; 
Reef Fish Resources of the Gulf of Mexico; Requirement for a Descending 
Device or Venting Tool

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

ACTION: Proposed rule; request for comments.

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SUMMARY: NMFS proposes regulations to clarify terms used in the Direct 
Enhancement of Snapper Conservation and the Economy through Novel 
Devices Act of 2020 (Descend Act). Section 3 of the Descend Act 
requires commercial and recreational fishermen to have a descending 
device or a venting tool on the vessel and ready for use when fishing 
for federally managed reef fish species in Gulf of Mexico (Gulf) 
Federal waters. The purpose of this proposed rule is to clarify the 
statutory definitions of descending device and venting tool.

DATES: Written comments on the proposed rule must be received by 
December 9, 2021.

ADDRESSES: You may submit comments on the proposed rule, identified by 
``NOAA-NMFS-2021-0100,'' by either of the following methods:
     Electronic submission: Submit all electronic comments via 
the Federal e-Rulemaking Portal. Go to http://www.regulations.gov and 
enter ``NOAA-NMFS-2021-0100'' in the Search box. Click the ``Comment'' 
icon, complete the required fields, and enter or attach your comments.
     Mail: Submit all written comments to Peter Hood, NMFS 
Southeast Regional Office, 263 13th Avenue South, St. Petersburg, FL 
33701.
    Instructions: Comments sent by any other method, to any other 
address or

[[Page 62138]]

individual, or received after the end of the comment period may not be 
considered by NMFS. All comments received are a part of the public 
record and will generally be posted for public viewing on 
www.regulations.gov without change. All personal identifying 
information (e.g., name, address, etc.), confidential business 
information, or otherwise sensitive information submitted voluntarily 
by the sender will be publicly accessible. NMFS will accept anonymous 
comments--enter ``N/A'' in required fields if you wish to remain 
anonymous.
    Electronic copies of the Descend Act and the Regulatory Flexibility 
Act (RFA) analysis for this proposed rule may be obtained from 
www.regulations.gov or the NMFS Southeast Regional Office website at 
https://www.fisheries.noaa.gov/action/descending-device-and-venting-tool-direct-enhancement-snapper-conservation-and-economy.

FOR FURTHER INFORMATION CONTACT: Peter Hood, NMFS Southeast Regional 
Office, telephone: 727-824-5305, or email: [email protected].

SUPPLEMENTARY INFORMATION: On January 13, 2021, the majority of the 
Descend Act became effective with the exception of section 3, which 
becomes effective on January 13, 2022. Section 3 of the Descend Act 
amends the Magnuson-Stevens Fishery Conservation and Management Act 
(Magnuson-Stevens Act) by adding section 321, titled ``Required 
possession of descending devices.'' Section 321 of the Magnuson-Stevens 
Act requires fishermen on commercial vessels, charter vessels and 
headboats (for-hire vessels), and private recreational vessels to have 
a descending device or venting tool rigged and ready to use when 
fishing for Gulf reef fish in Federal waters. This proposed rule would 
clarify the statutory definitions of descending device and venting 
tool, which are devices designed to help reduce post-release mortality 
of fish from the effects of barotrauma.
    Gulf reef fish are those fish included in the Fishery Management 
Plan for the Reef Fish Resources of the Gulf of Mexico (FMP). A list of 
Gulf reef fish can be found in Table 3 of Appendix A to 50 CFR part 
622--Species Tables; Gulf Reef Fish, https://www.ecfr.gov/current/title-50/chapter-VI/part-622/appendix-Appendix%20A%20to%20Part%20622. 
For purposes of management of under the FMP, Federal waters in the Gulf 
begin seaward of 9 nautical miles (16.7 km) from the coast off all the 
Gulf States (Pub. L. 114-113, December 18, 2015, and Pub. L. 115-31, 
May 5, 2017).
    Barotrauma in fish is an injury caused by the expansion of gas 
inside a fish from the rapid pressure decrease that may occur when a 
fish is retrieved from depth. Barotrauma generally occurs when 
retrieving fish from depths of 90 ft (27.4 m) or greater, though it can 
occur in waters as shallow as approximately 33 ft (10 m) deep. The 
internal gases fill the abdomen and the fish may be unable to swim back 
down to the catch depth. Signs of barotrauma in fish include a 
distended abdomen, bulging eyes, an everted stomach, and bubbling under 
the scales. Fish experiencing barotrauma often have difficulty 
returning to deeper water or float on the surface, which makes them 
more vulnerable to predation from dolphins, sharks and other fish, and 
seabirds. Fishermen can help reduce mortality to fish they release by 
using a descending device or a venting tool when barotrauma is 
affecting a fish that has been caught. A descending device lowers the 
fish back to depth where internal gases recompress and the fish can be 
released. A venting tool can release gases in a fish's abdomen at the 
surface allowing the fish to swim unaided back to depth.
    The Descend Act states that the term ``venting tool'' has the 
meaning given to it by the Gulf Council. The Gulf Council defines the 
term venting tool in its Policy on the Use of Venting Tools and 
Descending Devices as a sharpened, hollow instrument capable of 
penetrating the abdomen of a fish to release the excess gases 
accumulated in body cavity. The definition also indicates a device that 
is not hollow, such as a knife or ice pick, is not a venting tool and 
will cause additional damage to a fish.
    The Gulf Council previously required the use of a venting tool for 
Gulf reef fish in Amendment 27 to the FMP and the final rule 
implementing the amendment added a definition of ``venting device'' to 
the regulations (73 FR 5117, January 29, 2008). The term ``venting 
device'' means, ``a device intended to deflate the abdominal cavity of 
a fish to release the fish with minimum damage.'' 50 CFR 622.2. The 
Gulf Council and NMFS subsequently removed the requirement to use a 
``venting tool,'' the term used in the August 2, 2013, final rule, for 
several reasons (78 FR 46820), but the regulations at 50 CFR 622.2 
retain the definition of venting device. This proposed rule would 
clarify that the applicable Gulf Council definition is the definition 
in its Policy on the Use of Venting Tools and Descending Devices.
    The Descend Act defines the term descending device as an instrument 
that will release fish at a depth sufficient for the fish to be able to 
recover from the effects of barotrauma; it is a weighted hook, lip 
clamp, or box that will hold the fish while it is lowered to depth, or 
another device determined to be appropriate by the Secretary of 
Commerce (Secretary); and is capable of releasing the fish 
automatically, releasing the fish by actions of the operator of the 
device, or allowing the fish to escape on its own. This proposed rule 
would clarify that the depth sufficient for a fish to be able to 
recover from the effects of barotrauma is the depth at which the fish 
was caught and specify the minimum weight and minimum length of line 
required to be consistent with the current regulatory definition of 
``descending device'' at 50 CFR 622.188(a)(4). The regulations in 
section 622.188(a)(4) were put in place by NMFS in 2020 to implement 
the South Atlantic Fishery Management Council's Regulatory Amendment 29 
to the Fishery Management Plan for the Snapper-Grouper Fishery of the 
South Atlantic (85 FR 36166, June 15, 2020). Those regulations require 
a descending device be on board a vessel and be ready for use while 
fishing for or possessing South Atlantic snapper-grouper.

Management Measures Contained in This Proposed Rule

    Consistent with the requirement in the Descend Act, this proposed 
rule would require a descending device or a venting tool on the vessel 
that is rigged and ready for use while fishing is occurring. This 
proposed rule would also clarify the statutory definitions of 
descending device and venting tool to assist Gulf reef fish fishermen 
in complying with the statutory requirement.

Descending Device

    This proposed rule would define a descending device as a device 
capable of releasing the fish at the depth from which the fish was 
caught, and would specify that the device must use a minimum of a 16-
ounce (454-gram) weight and a minimum of a 60-ft (15.2-m) length of 
line. A 16-ounce weight is available at many tackle shops and is heavy 
enough to descend a majority of Gulf reef fish subject to barotrauma. 
However, using more weight would help to descend a large fish or where 
currents are strong. NMFS proposes the 60-ft (18.3-m) minimum length 
for the line attached to a descending device to ensure fish are 
released at a minimum depth of 50 ft (15.2 m) while someone using the 
descending device is standing

[[Page 62139]]

on the deck of a vessel, and to account for possible ocean currents or 
swells. Using a line long enough to release a fish at the depth from 
which it was caught will best ensure that the fish can recover from the 
effects of barotrauma.
    These proposed minimum specifications are currently required for 
commercial and recreational fishermen in the South Atlantic snapper-
grouper fishery. NMFS proposes the same specifications for a descending 
device in the Gulf reef fish fishery to increase the likelihood of 
compliance by fishermen who may fish in both the Gulf and South 
Atlantic, and to aid with enforcement.
    As specified in the Descend Act, a descending device may attach to 
the fish's mouth, through the fish's mouth and gill plate, or it may be 
a container that will retain the fish while it is lowered to depth. 
Operating a descending device can vary between types but the device 
must be capable of releasing the fish at depth automatically, by 
actions of the device operator, or by allowing the fish to escape on 
its own when at depth.

Venting Tool

    This proposed rule would define a venting tool consistent with the 
Gulf Council's policy and remove the term ``venting device'' from the 
regulations. A venting tool must be capable of penetrating the abdomen 
of a fish to release the excess gases accumulated in body cavity when a 
fish is retrieved from depth. Further, a venting tool must be a 
sharpened, hollow instrument that allows air to escape, such as a 
hypodermic syringe with the plunger removed. A 16-gauge needle, which 
has an outside diameter of 0.065 inches (1.65 mm), is the minimum 
diameter hollow tube that must be used. Gulf reef fish fishermen may 
also choose to use a larger diameter hollow needle because it will 
allow more air to escape from a fish rapidly. Fishermen must not use a 
tool that is not hollow, such as a knife or an ice pick, to vent a 
fish. A knife or other non-hollow tube is not a venting tool and its 
use would cause further injury to a fish.
    While the Descend Act and this proposed rule would allow Gulf reef 
fish fishermen to choose whether to carry a descending device or 
venting tool on a vessel, there is nothing that would prevent fishermen 
from carrying both types of devices. Fishermen may find that they favor 
a certain device for individual situations.

Expiration of Requirements

    The requirement in section 3 of Descend Act expires 5 years after 
its enactment. Therefore, the provisions contained in this proposed 
rule would also end after January 13, 2026, unless the Gulf Council or 
NMFS take further action to retain any of the regulatory provisions.

Classification

    NMFS is issuing this proposed rule pursuant to section 305(d) of 
the Magnuson-Stevens Act. Pursuant to section 305(d), this action is 
necessary to clarify the statutory definitions in section 3 of the 
Descend Act, which adds new section 321 to the Magnuson-Stevens Act 
that affects persons fishing for Gulf reef fish species. The NMFS 
Assistant Administrator has determined that this proposed rule is 
consistent with the Descend Act, other provisions of the Magnuson-
Stevens Act, and other applicable law, subject to further consideration 
after public comment.
    This proposed rule has been determined to be not significant for 
purposes of Executive Order 12866.
    The Chief Counsel for Regulation of the Department of Commerce has 
certified to the Chief Counsel for Advocacy of the Small Business 
Administration (SBA) that this proposed rule, if adopted, would not 
have a significant economic impact on a substantial number of small 
entities. The factual basis for this determination follows.
    A description of this proposed rule, why it is being considered, 
and the objectives of this proposed rule are contained in the 
SUPPLEMENTARY INFORMATION section of the preamble. The Magnuson-Stevens 
Act provides the statutory basis for this proposed rule.
    This proposed rule would apply to all federally permitted 
commercial vessels and for-hire vessels, as well as private or rental 
recreational vessels that are fishing for Gulf reef fish in Gulf 
Federal waters. The RFA does not consider recreational anglers to be 
small entities, so they are outside the scope of this analysis and only 
the impacts on commercial and for-hire fishing businesses will be 
discussed.
    As of February 23, 2021, there were 831 valid or renewable limited-
access permits for Gulf reef fish. On average from 2015 through 2019, 
there were 543 federally permitted commercial vessels each year with 
reported landings of Gulf reef fish. Their average annual vessel-level 
gross revenue from all species harvested for 2015 through 2019 was 
approximately $121,500 (2020 dollars) and Gulf reef fish accounted for 
approximately 94 percent of this revenue. The maximum annual revenue 
from all species reported by a single one of the commercial vessels 
that landed Gulf reef fish from 2015 through 2019 was approximately 
$2.4 million (2020 dollars).
    On February 23, 2021, there were 1,306 vessels with a valid or 
renewable charter vessel/headboat permit for Gulf reef fish (including 
historical captain permits). Although the charter vessel/headboat 
permit application collects information on the primary method of 
operation, the permit itself does not identify the permitted vessel as 
either a charter vessel or a headboat and vessels may operate in both 
capacities. The average charter vessel is estimated to receive 
approximately $91,000 (2020 dollars) in annual revenue; the average 
headboat is estimated to receive approximately $275,000 in annual 
revenue.
    For RFA purposes only, NMFS has established a small business size 
standard for businesses, including their affiliates, whose primary 
industry is commercial fishing (see 50 CFR 200.2). A business primarily 
engaged in commercial fishing (NAICS code 11411) is classified as a 
small business if it is independently owned and operated, is not 
dominant in its field of operation (including its affiliates), and has 
combined annual receipts not in excess of $11 million for all its 
affiliated operations worldwide. All of the commercial fishing 
businesses directly regulated by this proposed rule are believed to be 
small entities based on the NMFS size standard.
    The SBA has established size standards for all major industry 
sectors in the U.S. including for-hire businesses (NAICS code 487210). 
A business primarily involved in the for-hire fishing industry is 
classified as a small business if it is independently owned and 
operated, is not dominant in its field of operation (including its 
affiliates), and has combined annual receipts not in excess of $8 
million for all its affiliated operations worldwide. All of the for-
hire fishing businesses directly regulated by this proposed rule are 
believed to be small entities based on the SBA size criteria.
    No other small entities that would be directly affected by this 
proposed rule have been identified.
    This proposed rule would not establish any new reporting or record-
keeping requirements. It would, however, reiterate the requirements of 
the Descend Act and add clarity to the definitions of a descending 
device or venting tool. Per the requirements of the Descend Act, for a 
person on a vessel used to fish for Gulf reef fish in the Gulf Federal 
waters, a descending device or a venting tool that is rigged and ready 
for use while fishing is occurring must

[[Page 62140]]

be on the vessel. This statutory requirement will remain in effect 
regardless of the outcome of this proposed rule. No special 
professional skills would be necessary for compliance with this 
proposed rule.
    Data on how many commercial and for-hire vessels currently own a 
suitable descending device or venting tool are not available. Again, 
all regulated small entities would need to have or obtain such 
descending devices or venting tools regardless of the outcome of this 
proposed rule. The estimated cost per vessel of purchasing a compliant 
descending device, based on the lowest price retail option for 
descending devices, plus the cost of a qualifying weight and line, 
would be approximately $19 (2020 dollars). The estimated cost to 
purchase a compliant venting tool would be $7 (2020 dollars). Either 
option would represent well less than one percent of average annual per 
vessel revenue for affected small entities. Because there is no 
requirement for these tools to be put into use, only for them to be on 
board and rigged for use while fishing for Gulf reef fish, there are no 
additional implicit or explicit costs associated with this proposed 
rule. In summary, this proposed rule would not be expected to have a 
significant economic impact on a substantial number of small entities.
    The information provided above supports a determination that this 
proposed rule would not have a significant economic impact on a 
substantial number of small entities. As a result, an initial 
regulatory flexibility analysis is not required and none has been 
prepared.
    No duplicative, overlapping, or conflicting Federal rules have been 
identified. In addition, this proposed rule contains no information 
collection requirements under the Paperwork Reduction Act of 1995.

List of Subjects in 50 CFR Part 622

    Charter vessel, Commercial, Fisheries, Fishing, Gulf of Mexico, 
Headboat, Recreational, Reef fish.

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

    Dated: November 4, 2021.
Carrie Robinson,
Acting Deputy Assistant Administrator for Regulatory Programs, National 
Marine Fisheries Service.

    For the reasons set out in the preamble, 50 CFR part 622 is 
proposed to be amended as follows:

PART 622--FISHERIES OF THE CARIBBEAN, GULF OF MEXICO, AND SOUTH 
ATLANTIC

0
1. The authority citation for part 622 continues to read as follows:

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


Sec.  622.2  Definitions and acronyms. [Amended]

0
2. In Sec.  622.2, remove the definition of venting device.
0
3. In Sec.  622.30, revise the introductory text and add paragraph (c) 
to read as follows:


Sec.  622.30  Required fishing gear.

    For a person on board a vessel to fish for Gulf reef fish in the 
Gulf EEZ, the following fishing gear must be on the vessel and such 
person must use the gear as specified in paragraphs (a) and (b) of this 
section.
* * * * *
    (c) Gear required by the DESCEND Act of 2020. For a person on a 
vessel to fish for Gulf reef fish in the Gulf EEZ, a descending device 
or a venting tool that is rigged and ready for use while fishing is 
occurring must be on the vessel. The requirements in this paragraph (c) 
are effective until January 14, 2026.
    (1) Descending device. A descending device is an instrument capable 
of releasing a fish at the depth from which the fish was caught.
    (i) The descending device must be a weighted hook, lip clamp, or 
container that will hold the fish while it is lowered to depth. The 
device must be capable of releasing the fish automatically, by actions 
of the operator of the device, or by allowing the fish to escape on its 
own when at depth.
    (ii) The descending device must use a minimum of a 16-ounce (454-
gram) weight and a minimum of a 60-ft (15.2-m) length of line.
    (2) Venting tool. A venting tool is a device capable of penetrating 
the abdomen of a fish to release the excess gases accumulated in body 
cavity when a fish is retrieved from depth. A venting tool must be a 
sharpened, hollow instrument that allows air to escape, such as a 
hypodermic syringe with the plunger removed. A 16-gauge needle, which 
has an outside diameter of 0.065 inches (1.65 mm), is the minimum 
diameter hollow tube that must be used. A larger diameter hollow needle 
is preferred to allow more air to escape from a fish rapidly. A device 
that is not hollow, such as a knife or an ice pick, is not a venting 
tool and will cause additional damage to a fish.

[FR Doc. 2021-24513 Filed 11-8-21; 8:45 am]
BILLING CODE 3510-22-P