[Federal Register Volume 62, Number 41 (Monday, March 3, 1997)]
[Rules and Regulations]
[Pages 9377-9379]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 97-4907]


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DEPARTMENT OF COMMERCE
50 CFR Part 648

[Docket No. 970214031-7031-01; I.D. 011697C]


Fisheries of the Northeastern United States; Northeast 
Multispecies Fishery; Framework Adjustment 16

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

ACTION: Final rule.

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SUMMARY: NMFS issues this final rule to implement measures contained in 
Framework Adjustment 16 to the Northeast Multispecies Fishery 
Management Plan (FMP). This rule prohibits the use of all gillnets 
capable of catching Northeast multispecies during the periods in which 
the harbor porpoise time/area closures are in effect unless the gillnet 
meets certain specifications. The intent of this action is to restrict 
the use of small mesh pelagic gillnets, which are currently exempt from 
the multispecies regulations, to avoid increasing the risk of harbor 
porpoise entanglements but still allow a traditional bait fishery to 
continue by specifying the size and method of deployment of the gear.

EFFECTIVE DATE: April 2, 1997.

ADDRESSES: Copies of Amendment 7 to the Northeast Multispecies Fishery 
Management Plan (Amendment 7), its regulatory impact review (RIR) and 
the final regulatory flexibility analysis (FRFA) contained with the 
RIR, its final supplemental environmental impact statement (FSEIS), and 
Framework Adjustment 16 documents are available upon request from Paul 
Howard, Executive Director, New England Fishery Management Council 
(Council), 5 Broadway, Saugus, MA 01906-1097.

FOR FURTHER INFORMATION CONTACT: Richard A. Pearson, NMFS, Fishery 
Policy Analyst, 508-281-9279.

SUPPLEMENTARY INFORMATION:

Background

    Regulations governing the Northeast Multispecies fishery prohibit 
sink gillnet vessels from fishing in defined areas of the Gulf of Maine 
(GOM) during certain time periods based on the historic bycatch of 
harbor porpoise in that fishery.
    Framework Adjustment 9 to the FMP (60 FR 19364, April 18, 1995) 
prohibited any fishery using small mesh gear capable of catching 
multispecies unless the fishery qualified for an exemption based on a 
finding that it had less than 5 percent bycatch of regulated species. 
This had the effect of prohibiting small

[[Page 9378]]

mesh pelagic gillnets in the harbor porpoise time/area closures even 
though the regulation was unrelated to harbor porpoise protection.
    Amendment 7 to the FMP (61 FR 27710, May 31, 1996) exempted pelagic 
gillnets, including the small mesh pelagic gear used in the bait 
fishery, from the multispecies management measures, because the gear 
type has virtually no bycatch of multispecies. The Council's intent 
was, and still is, to allow vessels to fish for bait with certain 
pelagic nets, and to exempt pelagic drift gillnets used to catch 
swordfish, tunas, and sharks with large mesh in offshore fisheries that 
are not managed by the Council. The unintended consequence of the 
measure in Amendment 7 pertaining to gillnets was that there were no 
restrictions on the size, use, and deployment of small mesh pelagic 
gillnets in the harbor porpoise time/area closures even though certain 
types of small mesh gillnets are capable of entangling harbor porpoise.
    In the GOM, small mesh pelagic gillnets are either anchored or 
fished on the surface of the water and are used seasonally by tuna and 
lobster fishermen to collect herring, menhaden, mackerel, and whiting 
for bait. Periods of highest use overlap both in time and area with the 
harbor porpoise closures. Although, at this time, harbor porpoise 
bycatch in small mesh pelagic gillnets does not appear to be a 
significant problem, NMFS and the Council are specifying the size and 
characteristics of these nets and their method of deployment because 
the gear is currently unrestricted and has accounted for harbor 
porpoise entanglements. The intent of this action is to avoid any 
increased risk of entanglement but still allow for the prosecution of 
traditional bait fisheries.

Regulatory Provisions

    This rule extends the time and area closures implemented to reduce 
entanglements of harbor porpoise in the GOM to all gillnets capable of 
catching multispecies with the following exception: vessels may fish 
with a single pelagic gillnet, not longer than 300 ft (91.44 m) and not 
greater than 6 ft (1.83 m) deep, with a maximum mesh size of 3 inches 
(7.62 cm); the net must be attached to the boat, fished in the upper 
two-thirds of the water column, and marked with the owner's name and 
vessel identification number.
    These restrictions apply to all pelagic gillnets capable of 
catching multispecies deployed in any of the harbor porpoise time/area 
closures. Gillnets used to capture highly migratory species, that are 
incapable of capturing multispecies finfish, are not restricted by this 
action.
    A 1990 gillnet survey indicates that approximately 200 vessels 
occasionally use pelagic gillnets primarily to harvest bait. The cost 
and availability of bait in the tuna and lobster fisheries may increase 
as a result of this action, but these costs will probably be offset by 
lower enforcement costs due to the enforceability of the measure as the 
net must be attached to the vessel and tended at all times. According 
to comments received at public meetings, vessels should still be able 
to capture enough bait to meet their requirements.
    The Council considered information, views and comments made at 
Marine Mammal Committee meetings held on April 2, 1996, May 12, 1996, 
and July 30, 1996, and at three Council meetings, on April 17, 1996, 
June 5, 1996, and July 17, 1996. Documents summarizing the Council's 
proposal, the biological analyses upon which this decision was based, 
and potential economic impacts were available for public review 5 days 
prior to the final meeting as required under the framework adjustment 
process. Written comments were accepted up to and during the August 20, 
1996, Council meeting in Danvers, MA.

Comments and Responses

    Comments on the action were received at several meetings from 
individuals representing the International Wildlife Coalition, Maine 
Department of Marine Resources, East Coast Tuna Association, and the 
Massachusetts Netters Association. Fishermen's concerns centered 
chiefly on a possible alteration in fishing practices, while all groups 
supported the specifications for net length, mesh size, deployment and 
gear marking.
     Comment : Several groups and a number of individuals were 
concerned about the net tending requirement. Nets are often anchored to 
the bottom and are left unattended if an opportunity such as a giant 
bluefin tuna presents itself. Because of this, an individual 
representing the tuna industry stated that it would be very 
inconvenient to attach the net to the vessel, although it would still 
be possible to prosecute both fisheries. Greater concern was expressed 
by individuals representing the lobster industry, since lobstermen 
fishing for bait with pelagic gillnets anchor their nets on the bottom 
and leave them to check traps before returning to haul the net.
    Response: Harbor porpoise are present in significant numbers 
inshore in the northern GOM during the summer and early fall months. 
Given that both tuna and lobster fisheries are fishing for the same 
prey species as harbor porpoise and that their fishing season and the 
presence of porpoise overlap, the possibility for entanglement is 
likely, particularly without any restrictions on bait nets. Although 
the porpoise bycatch in such nets appears to be low at this time, the 
restrictions provided for in this action would enhance protection in 
areas where they are most susceptible to entanglement. The requirement 
that the net be attached to the vessel and its size essentially 
guarantees that vessel operators would be aware of any marine mammal 
interactions. Restricting the use of baitnets to small pelagic gillnets 
in the harbor porpoise closure areas also addresses the dilemma of 
enforcing the porpoise measures for one type of gillnet while exempting 
another that may be fished in much the same manner.

Adherence to Framework Procedure Requirements

    The Council considered public comment prior to making its 
recommendation to the Administrator, Northeast Region, NMFS, under the 
provisions for abbreviated rulemaking in this FMP. The Council 
requested publication of these management measures as a final rule 
after considering the required factors stipulated under the framework 
measures in the FMP, 50 CFR 648.90, and has provided supporting 
analyses for each factor considered. NMFS concurs.

Classification

    Public meetings held by the Council to discuss the management 
measures implemented by this rule provided prior notice and opportunity 
for public comment to be heard and considered. The Council's Marine 
Mammal Committee discussed the framework adjustment at public meetings 
on April 2, 1996, May 21, 1996, and July 30, 1996, and at the 
Multispecies (Groundfish) Committee meetings held on April 11, 1996, 
and April 13, 1996. Therefore, the Assistant Administrator for 
Fisheries, NOAA, finds there is good cause under 5 U.S.C. 553(b)(B) to 
waive the requirement to provide prior notice or an opportunity for 
public comment as such procedures are unnecessary.
    As prior notice and an opportunity for public comment are not 
required to be provided for this rule by 5 U.S.C. 553, or any other 
law, the analytical requirement of the Regulatory Flexibility Act, 5 
U.S.C. 601 et seq., are applicable. Nevertheless, this action does not 
significantly increase the impact beyond the scope of impact on

[[Page 9379]]

small entities already analyzed, discussed, and described in Amendments 
5 and 7 to the FMP.
    This final rule has been determined to be not significant for 
purposes of E.O. 12866.

List of Subjects in 50 CFR Part 648

    Fisheries, Fishing, Reporting and recordkeeping requirements.

    Dated: February 21, 1997.
Rolland A. Schmitten,
Assistant Administrator for Fisheries, National Marine Fisheries 
Service.
    For the reasons set out in the preamble, 50 CFR part 648 is amended 
as follows:

PART 648--FISHERIES OF THE NORTHEASTERN UNITED STATES

    1. The authority citation for part 648 continues to read as 
follows:

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

    2. In Sec. 648.2, the definition for ``Gillnet gear capable of 
catching multispecies'' is added in alphabetical order to read as 
follows:


Sec. 648.2  Definitions.

* * * * *
    Gillnet gear capable of catching multispecies means all gillnet 
gear except pelagic gillnet gear specified at Sec. 648.81(f)(2)(ii) and 
pelagic gillnet gear that is designed to fish for and is used to fish 
for, or catch, tunas, swordfish and sharks.
* * * * *
    3. In Sec. 648.14, paragraph (a)(89) is revised and paragraph 
(c)(11) is added to read as follows:


Sec. 648.14  Prohibitions.

    (a) * * *
    (89) Fish with, set, haul back, possess on board a vessel, unless 
stowed in accordance with Sec. 648.23(b), or fail to remove sink 
gillnet gear or gillnet gear capable of catching multispecies from the 
EEZ portion of the areas, and for the times, specified in 
Sec. 648.87(a) and (b), except as provided in Sec. 648.81(f)(2)(ii) and 
in Sec. 648.87(b)(1)(i), or unless authorized in writing by the 
Regional Administrator.
* * * * *
    (c) * * *
    (11) Enter, fail to remove sink gillnet gear or gillnet gear 
capable of catching multispecies from, or be in the areas, and for the 
times, described in Sec. 648.87(a) and (b), except as provided in 
Sec. 648.81(d), (f)(2), (g)(2), and (h)(2), and in 
Sec. 648.87(b)(1)(i).
* * * * *
    4. In Sec. 648.81, paragraph (f)(2)(ii) is revised to read as 
follows:


Sec. 648.81  Closed areas.

* * * * *
    (f) * * *
    (2) * * *
    (ii) That are fishing with or using exempted gear as defined under 
this part, excluding mid-water trawl gear and pelagic gillnet gear 
capable of catching multispecies, except vessels may fish with a single 
pelagic gillnet, not longer than 300 ft and not greater than 6 ft deep, 
with a maximum mesh size of 3 inches, provided the net is attached to 
the boat, is fished in the upper two-thirds of the water column and is 
marked with the owner's name and vessel identification number, and 
provided there is no other gear on board capable of catching 
multispecies finfish; or
* * * * *
    5. In Sec. 648.87, the section heading and paragraph (a) and 
paragraph (b) heading and introductory text are revised to read as 
follows:


Sec. 648.87  Gillnet requirements to reduce harbor porpoise takes.

    (a) Areas closed to sink gillnets and other gillnets capable of 
catching multispecies. Sections 648.81(f) through (h) set forth closed 
area restrictions to reduce the take of harbor porpoise consistent with 
the harbor porpoise mortality goals.
    (b) Additional areas closed to sink gillnets and other gillnets 
capable of catching multispecies. All persons owning or operating 
vessels in the EEZ portion of the areas and for the times specified in 
paragraphs (b)(1) and (2) of this section, must remove all of their 
sink gillnets and other gillnet gear capable of catching multispecies, 
and may not use, set, haul back, fish with, or possess on board (unless 
stowed in accordance with the requirements of Sec. 648.23(b)), a sink 
gillnet or other gillnet gear capable of catching multispecies except 
for a single pelagic gillnet as described in Sec. 648.81(f)(2)(ii); and 
all persons owning or operating vessels issued a limited access 
multispecies permit must remove all of their gillnet gear capable of 
catching multispecies and may not use, set, haul back, fish with, or 
possess on board (unless stowed in accordance with the requirements of 
Sec. 648.23(b)), a gillnet capable of catching multispecies in the 
areas and for the time specified in paragraphs (b)(1) and (2) of this 
section, except for a single pelagic gillnet as described in 
Sec. 648.81(f)(2)(ii).
* * * * *
[FR Doc. 97-4907 Filed 2-28-97; 8:45 am]
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