`[Federal Register Volume 90, Number 10 (Thursday, January 16, 2025)]
[Rules and Regulations]
[Pages 4856-4913]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2024-30576]



[[Page 4855]]

Vol. 90

Thursday,

No. 10

January 16, 2025

Part II





Department of Commerce





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National Oceanic and Atmospheric Administration





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15 CFR Part 922





Papah[amacr]naumoku[amacr]kea National Marine Sanctuary; Final 
Regulations; Final Rule

  Federal Register / Vol. 90 , No. 10 / Thursday, January 16, 2025 / 
Rules and Regulations  

[[Page 4856]]


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DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

15 CFR Part 922

[Docket No. 240213-0047]
RIN 0648-BL33


Papah[amacr]naumoku[amacr]kea National Marine Sanctuary; Final 
Regulations

AGENCY: Office of National Marine Sanctuaries (ONMS), National Ocean 
Service (NOS), National Oceanic and Atmospheric Administration (NOAA), 
Department of Commerce (DOC).

ACTION: Final rule; notification of availability of final management 
plan and Record of Decision.

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SUMMARY: NOAA is designating Papah[amacr]naumoku[amacr]kea National 
Marine Sanctuary (sanctuary) to protect nationally significant 
biological, cultural, and historical resources and to manage this 
special place as part of the National Marine Sanctuary System. The 
sanctuary consists of an area of approximately 582,570 square statute 
miles (439,910 square nautical miles) of Pacific Ocean waters 
surrounding the Northwestern Hawaiian Islands and the submerged lands 
thereunder. NOAA is establishing the terms of designation for the 
sanctuary and the regulations to implement the national marine 
sanctuary designation. NOAA has also published a final environmental 
impact statement (final EIS) in coordination with the State of 
Hawai[revaps]i, final management plan, and Record of Decision.

DATES: Effective Date: Pursuant to section 304(b) of the National 
Marine Sanctuaries Act (NMSA) (16 U.S.C. 1434(b)), the designation and 
regulations shall take effect and become final after the close of a 
review period of forty-five days of continuous session of Congress, 
beginning on the date on which this Federal rulemaking is published, 
which is January 16, 2025. During that review period, the Governor of 
the State of Hawai[revaps]i may certify to the Secretary of Commerce 
that the designation or any of its terms is unacceptable, in which case 
the designation or any unacceptable term shall not take effect in State 
waters of the sanctuary. The public can track days of Congressional 
session at the following website: https://www.congress.gov/days-in-session. NOAA will publish an announcement of the effective date of the 
final regulations in the Federal Register.

ADDRESSES: Copies of the final environmental impact statement (EIS) and 
management plan described in this rule and the record of decision (ROD) 
are available at https://sanctuaries.noaa.gov/papahanaumokuakea/.

FOR FURTHER INFORMATION CONTACT: Eric Roberts, 
Papah[amacr]naumoku[amacr]kea Marine National Monument Superintendent, 
at [email protected] or 808-294-7470.

SUPPLEMENTARY INFORMATION:

I. Introduction

A. Background

    The NMSA (16 U.S.C. 1431 et seq.) authorizes the Secretary of 
Commerce to designate and protect as national marine sanctuaries areas 
of the marine environment that are of special national significance due 
to their conservation, recreational, ecological, historical, 
scientific, cultural, archaeological, educational, or esthetic 
qualities. Day-to-day management of national marine sanctuaries has 
been delegated by the Secretary of Commerce to NOAA. The primary 
objective of the NMSA is to protect the resources of the National 
Marine Sanctuary System. NOAA is designating marine portions of the 
Papah[amacr]naumoku[amacr]kea Marine National Monument as a national 
marine sanctuary to provide comprehensive and coordinated management of 
the marine areas of Papah[amacr]naumoku[amacr]kea to protect nationally 
significant biological, cultural, and historical resources. The 
original Papah[amacr]naumoku[amacr]kea Marine National Monument (PMNM, 
0-50 nm), and the Monument Expansion Area (MEA, 50-200 nm), 
(collectively ``Monument''), located around the Northwestern Hawaiian 
Islands, were established under the Antiquities Act of 1906 (54 U.S.C. 
320301 et seq.) through, respectively, Presidential Proclamation 8031 
of June 15, 2006; as amended by Presidential Proclamation 8112 of 
February 28, 2007; and Presidential Proclamation 9478 of August 26, 
2016. The Monument is administered jointly by four co-trustees--the 
Department of Commerce (DOC), the Department of the Interior (DOI), the 
State of Hawai[revaps]i, and the Office of Hawaiian Affairs (OHA).
    The 2000 Amendments to the NMSA authorized designation of a 
Northwestern Hawaiian Islands Coral Reef Ecosystem Reserve (Reserve) to 
be managed by the Secretary of Commerce. In December 2000, President 
Clinton issued Executive Order 13178 that began the public process to 
establish the Reserve, and directed the Secretary of Commerce to 
initiate the process to designate the Reserve as a national marine 
sanctuary. In January 2001, President Clinton issued Executive Order 
13196 finalizing the establishment of the Reserve.
    In 2006, President Bush established PMNM through Proclamation 8031 
to protect and preserve the marine area of the Northwestern Hawaiian 
Islands and certain lands as necessary for the care and management of 
the historic and scientific objects therein. The Federal land and 
interests in land reserved included approximately 139,793 square miles 
of emergent and submerged lands and waters of the Northwestern Hawaiian 
Islands. NOAA and the United States Fish and Wildlife Service (USFWS) 
promulgated implementing regulations at 50 CFR part 404 for PMNM.
    In 2016, President Obama established the MEA through Proclamation 
9478, which included the waters and submerged lands seaward of the PMNM 
to the extent of the seaward limit of the United States Exclusive 
Economic Zone (U.S. EEZ) west of 163[deg] West Longitude. The MEA 
includes an additional 442,781 square miles. Presidential Proclamation 
9478 also directed the Secretary of Commerce to consider initiating the 
process to designate the MEA and PMNM seaward of the Hawaiian Islands 
National Wildlife Refuge and Midway Atoll National Wildlife Refuge and 
Battle of Midway National Memorial as a national marine sanctuary to 
supplement and complement existing authorities. On December 27, 2020, 
the Joint Explanatory Statement accompanying the Consolidated 
Appropriations Act, 2021, further directed NOAA to initiate the process 
to designate the Monument as a national marine sanctuary.
    The sanctuary consists of a total area of approximately 582,570 
square miles (439,910 square nautical miles). The precise boundary 
coordinates are defined in Appendix A to the regulations at 15 CFR part 
922, subpart W. The sanctuary boundary encompasses the submerged lands, 
seamounts, and Pacific Ocean waters from the shoreline seaward to 
approximately 200 nautical miles west of 163[deg] West Longitude 
surrounding the Northwestern Hawaiian Islands, which consist of the 
islands, atolls, and emergent lands stretching from Nihoa in the 
southeast to Kure Atoll in the northwest. The adjoining marine waters 
east of 163[deg] West Longitude surrounding Nihoa extend seaward from 
the shoreline to approximately 50 nautical miles.
    The sanctuary is a place of unique environmental resources that 
provide large-scale ecosystem services for both

[[Page 4857]]

the region and the world. The marine habitat includes several 
interconnected ecosystems, including coral islands surrounded by 
shallow reef, deeper reef habitat characterized by seamounts, banks, 
and shoals, mesophotic reefs with extensive algal beds, pelagic waters 
connected to the greater North Pacific Ocean, and deep-water habitats 
such as abyssal plains 5,000 meters below sea level. These ecosystems 
are connected as essential habitats for rare species such as the 
threatened green turtle and the endangered Hawaiian monk seal, as well 
as over 14 million seabirds that forage in the pelagic waters to 
nourish the chicks they are raising on the tiny islets. These waters 
are home to 20 cetacean species protected by the Marine Mammal 
Protection Act, with some listed as endangered under the Endangered 
Species Act. The importance of these waters to the Hawaiian humpback 
whale is only recently becoming understood. At least a quarter of the 
nearly 7,000 known marine species found in the region are found nowhere 
else on Earth.
    The area of the sanctuary is also a sacred place to Native 
Hawaiians, who regard the islands and wildlife as k[umacr]puna, or 
ancestors. The region holds deep cosmological and traditional 
significance for the people of Hawai[revaps]i and the Native Hawaiian 
culture. Papah[amacr]naumoku[amacr]kea is as much a spiritual space as 
it is a physical geographical area, deeply rooted in Native Hawaiian 
creation and settlement stories. Since Native Hawaiian culture 
considers nature and culture to be one and the same, the protection of 
one of the last nearly pristine, natural, marine ecosystems in the 
archipelago is seen as being akin to preserving the living culture.
    The area of the sanctuary also includes the location of the Battle 
of Midway, a turning point in World War II for the allies in the 
Pacific Theater. Research indicates that there are 60-80 sunken 
military vessels and hundreds of sunken military aircraft on the 
seafloor. In addition to Navy steamers and aircraft, there are whaling 
ships, ancient Japanese sailing ships known as junks, motorized East 
Asian style fishing vessels known as Hawaiian fishing sampans, Pacific 
colliers, and other vessels from the 19th and 20th centuries. Of these, 
the locations of more than 30 vessel wreck sites have been confirmed by 
diving or bathymetric surveys, with only a handful of those identified 
by vessel name or otherwise evaluated.

B. Purpose and Need for Action

    The NMSA (16 U.S.C. 1431 et seq.) authorizes the Secretary of 
Commerce to designate national marine sanctuaries to meet the purposes 
and policies of the NMSA, including:
     to provide authority for comprehensive and coordinated 
conservation and management of these marine areas, and activities 
affecting them, in a manner which complements existing regulatory 
authorities;
     to maintain the natural biological communities in the 
national marine sanctuaries, and to protect, and, where appropriate, 
restore and enhance natural habitats, populations, and ecological 
processes;
     to enhance public awareness, understanding, appreciation, 
and wise and sustainable use of the marine environment, and the 
natural, historical, cultural, and archaeological resources of the 
National Marine Sanctuary System'' (16 U.S.C. 1431(b)(4));
     ``to support, promote, and coordinate scientific research 
on, and long-term monitoring of, the resources of these marine areas'' 
(16 U.S.C. 1431(b)(5)); and
     ``to facilitate to the extent compatible with the primary 
objective of resource protection, all public and private uses of the 
resources of these marine areas not prohibited pursuant to other 
authorities'' (16 U.S.C. 1431(b)(6)).
    NOAA is designating the marine areas of the Monument as a national 
marine sanctuary. The purpose of this action is to provide 
comprehensive and coordinated conservation and management of the marine 
areas of Papah[amacr]naumoku[amacr]kea to protect nationally 
significant biological, cultural, and historical resources. 
Additionally, the purpose of the designation is to implement the 
provisions of Executive Order 13178, Presidential Proclamation 9478, 
and the Joint Explanatory Statement accompanying the Consolidated 
Appropriations Act, 2021.
    Accordingly, NOAA is designating this area as a national marine 
sanctuary to:
     Develop objectives and actions that ensure lasting 
protection consistent with the existing Monument proclamations;
     Safeguard natural and cultural values of the marine 
environment;
     Apply additional regulatory and non-regulatory tools to 
augment and strengthen existing protections for 
Papah[amacr]naumoku[amacr]kea ecosystems, wildlife, and cultural and 
maritime heritage resources;
     Authorize NOAA to exercise enforcement authorities, 
including the assessment of civil penalties for violations of 
provisions of the NMSA and regulations and permits issued pursuant to 
the NMSA (16 U.S.C. 1437);
     impose liability for destruction, loss of, or injury to 
sanctuary resources and provide natural resource damage assessment 
authorities for destruction, loss of, or injury to any sanctuary 
resource; and
     require interagency consultation for any Federal agency 
action that is likely to destroy, cause the loss of, or injure any 
sanctuary resource.

C. Designation Process

1. Notice of Intent To Designate a National Marine Sanctuary
    On November 19, 2021, NOAA initiated the process to designate 
marine portions of the Monument as a national marine sanctuary by 
publishing a Notice of Intent to Conduct Scoping and to Prepare an 
Environmental Impact Statement for the Proposed Designation of a 
National Marine Sanctuary within Papah[amacr]naumoku[amacr]kea Marine 
National Monument (86 FR 64904). The notice of intent stated that NOAA 
would prepare a draft EIS per the requirements of the National 
Environmental Policy Act (NEPA; 42 U.S.C. 4321 et seq.) and the NMSA. 
The notice of intent also announced NOAA's intent to fulfill its 
responsibilities under the National Historic Preservation Act (NHPA; 54 
U.S.C. 300101 et seq.). The State of Hawai[revaps]i published its EIS 
preparation notice on December 8, 2021. Following publication of these 
notices, NOAA conducted four virtual public scoping meetings. During 
the 74-day public comment period from November 19, 2021 through January 
31, 2022, 73 individuals and organizations provided written input. An 
estimated 165 people attended the four scoping meetings, with 9 people 
providing oral comments. The Summary of Scoping Input on the Notice of 
Intent and EIS Preparation Notice and State of Hawai[revaps]i Responses 
to Public Scoping Comments are included in the final EIS as Appendix F.
2. Public Comment on Draft Designation Materials
    On March 1, 2024, NOAA published a notice of proposed rulemaking 
and a notice of availability of the draft EIS (89 FR 15272) to release 
a proposed rule, draft EIS, and draft sanctuary management plan; and to 
request public comments on the proposed sanctuary designation 
documents. On March 8, 2024, the State of Hawai[revaps]i also informed 
the public about the availability of the draft EIS through an 
announcement in

[[Page 4858]]

its bulletin, The Environmental Notice, per the Hawai[revaps]i 
Environmental Policy Act (HEPA), Hawai[revaps]i Revised Statutes (HRS) 
Chapter 343-3(c). The USFWS, the State of Hawai[revaps]i, and the 
Department of the Navy served as cooperating agencies in reviewing and 
assisting with the development of the draft EIS.
    The public comment period took place over the course of 68 days 
from March 1 to May 7, 2024. Public meetings were held to provide 
additional information and to receive public input in the form of oral 
and written comments. Comments were accepted in both English and 
[revaps][omacr]lelo Hawai[revaps]i during 11 public meetings, held 
between April 6-18, 2024, including two virtual and nine in-person 
public meetings on O[revaps]ahu, Kaua[revaps]i, Hawai[revaps]i Island, 
Maui, and Moloka[revaps]i. Comments were also accepted through the 
Federal eRulemaking portal and by traditional mail through May 7, 2024, 
both in English and [revaps][omacr]lelo Hawai[revaps]i. An estimated 
237 people attended the 11 public meetings and 61 individuals provided 
oral comments. During the public comment period, 488 written comments 
and 13,385 form letters were received from individuals, organizations, 
and agencies. A total of 13,934 comments were received, with the 
overwhelming majority in support of sanctuary designation.
    Major themes of comments included sanctuary access, permitting, 
prohibitions, enforcement, Native Hawaiian indigenous rights and 
cultural integration, fishing, co-management, resource protection, 
education and outreach, partnerships, and community participation. 
After the public comment period closed, the comments were carefully 
reviewed and cataloged by substantive issues contained in the comments. 
In preparing the final EIS, final sanctuary management plan, and final 
rule, NOAA and the State of Hawai[revaps]i considered comments received 
on the draft designation documents, identified substantive comments, 
and provided responses to these comments. A summary of these comments 
and the corresponding responses from NOAA are provided in the final EIS 
Appendix K and in Section V of this rulemaking. In response to these 
substantive comments, NOAA clarified information and made changes to 
this final rule, the final EIS, and the final sanctuary management 
plan, as described further below.
3. Development of Terms of Designation and Regulations
    Section 304(a)(4) of the NMSA requires that the terms of 
designation include: (1) the geographic area that is included within 
the sanctuary; (2) the characteristics of the area that give it 
conservation, recreational, ecological, historical, research, 
educational, or esthetic value; and (3) the types of activities that 
would be subject to regulation by the Secretary to protect these 
characteristics. Section 304(a)(4) of the NMSA also specifies that the 
terms of designation may be modified only by the same procedures by 
which the original designation was made.
    The purpose and need for the sanctuary provide the overarching 
basis for developing the regulations. The designation of the sanctuary 
will not replace the area's current status as a marine national 
monument. Existing authorities, including management authorities of all 
Monument co-trustees, will remain in effect. Sanctuary designation will 
supplement the existing provisions for management of the Monument and 
protect resources in the Northwestern Hawaiian Islands. To develop 
these regulations, NOAA reviewed the following, which currently guide 
Monument management:
     Executive Order 13178--Northwestern Hawaiian Islands Coral 
Reef Ecosystem Reserve, December 4, 2000;
     Presidential Proclamation 8031--Establishment of the 
Northwestern Hawaiian Islands Marine National Monument, June 15, 2006;
     Presidential Proclamation 8112--Amending Proclamation 8031 
of June 15, 2006 to Read ``Establishment of the 
Papah[amacr]naumoku[amacr]kea Marine National Monument,'' February 29, 
2007;
     Regulations implementing Presidential Proclamations 8031 
and 8112 at 50 CFR part 404; and
     Presidential Proclamation 9478--
Papah[amacr]naumoku[amacr]kea Marine National Monument Expansion, 
August 26, 2016.

These executive orders, presidential proclamations, and regulations 
served as benchmarks for drafting the rule for the sanctuary. Sanctuary 
designation will only add to, and will not diminish, Monument 
management measures and protections. NOAA has adopted the management 
measures from these benchmarks, and, in a few areas, added onto those 
measures to achieve consistency in regulation and management across the 
sanctuary. The final rule unifies management of the area by removing 
discrepancies and gaps in prohibitions, regulated activities, and 
permit criteria, providing clarity and comprehensive protection for the 
sanctuary.
    In developing this final rule and the sanctuary terms of 
designation, NOAA also considered: (1) information received through 
public scoping and public review of the draft designation documents, 
cooperating agency review, and coordination with the Monument co-
trustees through the seven-member Monument Management Board, which 
consists of NOAA ONMS, NOAA Fisheries, USFWS Ecological Services, USFWS 
Refuges, Hawai[revaps]i Department of Land and Natural Resources (DLNR) 
Division of Aquatic Resources, DLNR-Division of Forestry and Wildlife, 
and OHA; and (2) information from analysis of issues in the EIS, 
interagency coordination, and internal staff analysis and expertise. 
NOAA also consulted with the Western Pacific Regional Fishery 
Management Council as required under the NMSA.
    Following publication of the proposed rule, in consideration of 
public comments and further review, NOAA made minor changes to the 
terms of designation and the regulations which are described in detail 
in Section III of this final rule. NOAA provides a detailed discussion 
of the final regulations in Section IV, subsection A through O, of this 
rule. The text of the final regulations is presented at the end of this 
rule.
4. Development of Final Management Plan
    A final sanctuary management plan has been prepared in accordance 
with NMSA section 304(a)(2)(C). Management plans are site-specific 
documents that ONMS uses to manage individual sanctuaries. The final 
sanctuary management plan: (1) articulates the sanctuary's vision, 
mission, goals, and objectives; (2) describes the management activities 
and initiatives that NOAA will conduct; and (3) provides strategies and 
assessment measures to guide the sanctuary's short- and mid-range 
management. In response to public comments, NOAA made minor changes to 
the final sanctuary management plan, which is included as Appendix A to 
the final EIS.
5. Final Environmental Impact Statement
    In accordance with NEPA (42 U.S.C. 4321 et seq.), the NMSA, and 
HEPA (HRS Chapter 343, HAR Chapter 11-200.1), NOAA and the State of 
Hawai[revaps]i released a final EIS for the national marine sanctuary 
designation in advance of the publication of this final rule. NOAA is 
the lead Federal agency in the preparation of the final EIS. The USFWS, 
State of Hawai[revaps]i, the Department of the Navy, and OHA were 
cooperating agencies for the final EIS. The final EIS describes the 
purpose and need for the proposed action of

[[Page 4859]]

designating a national marine sanctuary, identifies a range of 
alternatives including the preferred alternative, provides an 
assessment of resources and uses in the area, and evaluates the 
potential environmental consequences of the designation including by 
comparing the beneficial and adverse impacts among alternatives. NOAA 
has provided a section in the final EIS (see Section 1.5) to outline 
the substantive changes made between the draft EIS and final EIS.
    The final EIS analyzes four alternatives; including a ``no action'' 
alternative, in which the area would not be designated as a national 
marine sanctuary; and three boundary alternatives:
     Alternative 1 is coextensive with the marine portions of 
the Monument. The boundary includes the marine environment surrounding 
the Northwestern Hawaiian Islands from the shoreline of the islands and 
atolls seaward to 200 nautical miles, including all State waters and 
waters of the Northwestern Hawaiian Islands Coral Reef Ecosystem 
Reserve, Midway Atoll and Hawaiian Islands National Wildlife Refuges, 
the Battle of Midway National Memorial, and State of Hawai[revaps]i 
Northwestern Hawaiian Islands Marine Refuge. The area encompassed in 
Alternative 1 is approximately 582,570 square miles (439,910 square 
nautical miles).
     Alternative 2 includes the marine environment from the 
shoreline of the islands and atolls seaward to 50 nautical miles. This 
alternative includes all State waters and waters of the Northwestern 
Hawaiian Islands Coral Reef Ecosystem Reserve, Midway Atoll and 
Hawaiian Islands National Wildlife Refuges, the Battle of Midway 
National Memorial, and State of Hawai[revaps]i Northwestern Hawaiian 
Islands Marine Refuge. This alternative does not include the MEA. The 
area encompassed in Alternative 2 is approximately 139,782 square miles 
(105,552 square nautical miles).
     Alternative 3 has the same boundaries as Alternative 1, 
but excludes waters within the Midway Atoll and Hawaiian Islands 
National Wildlife Refuges and the Battle of Midway National Memorial. 
These excluded waters include portions of the State of Hawai[revaps]i 
Northwestern Hawaiian Islands Marine Refuge and the Northwestern 
Hawaiian Islands Coral Reef Ecosystem Reserve that overlap with 
national wildlife refuge waters. The area encompassed in Alternative 3 
is approximately 581,263 square miles (438,923 square nautical miles).
5. Final Preferred Alternative
    In accordance with NEPA (42 U.S.C. 4321 et seq.) and based on 
public comments on the draft designation materials and further review, 
NOAA has maintained Alternative 1 as the agency-preferred alternative 
(preferred alternative) based on its comparative merits; this 
alternative serves as the foundation of this final rule (Section 3.4 of 
the final EIS presents a map and details of this alternative). NOAA 
selected its final preferred alternative after considering input from 
the Monument Management Board, the State of Hawai[revaps]i, cooperating 
agencies, other agencies consulted, and public comments provided on the 
draft designation documents. Through the analysis in the final EIS, 
NOAA has determined that the final preferred alternative would provide 
numerous beneficial impacts, including increased protection and 
conservation of resources, and improved coordination of conservation 
and management. NOAA has also considered the potential adverse impacts 
of the final preferred alternative and anticipates that there would be 
no significant adverse impacts to biological and physical resources, 
cultural and historic resources, or socioeconomic resources.
    NOAA's identification of Alternative 1 as the final preferred 
alternative is based on the need for additional resource protection, 
scientific research, and public education in areas that would be 
excluded by selecting the boundaries of Alternatives 2 or 3. 
Alternative 1 includes the MEA, an area which would benefit from the 
establishment of a NOAA permitting process, and the promulgation of 
sanctuary regulations to protect resources. Alternative 1 also includes 
the waters of Midway Atoll National Wildlife Refuge and Hawaiian 
Islands National Wildlife Refuge, which are the areas of the sanctuary 
subject to the highest level of human activity.

II. Terms of Designation for Papah[amacr]naumoku[amacr]kea National 
Marine Sanctuary

    Section 304(a)(4) of NMSA as amended, 16 U.S.C. 1434(a)(4), 
requires that the terms of designation be described at the time a new 
sanctuary is designated, including the geographic area to be included 
within the sanctuary, the characteristics of the area that give it 
conservation, recreational, ecological, historical, research, 
educational, or esthetic value, and the types of activities that will 
be subject to regulation to protect those characteristics.
    The following represents the terms of designation:

Preamble

    Under the authority of the National Marine Sanctuaries Act, as 
amended (the ``Act'' or ``NMSA''), 16 U.S.C. 1431 et seq., 
approximately 582,570 square mi (439,910 square nmi) of the waters of 
the Pacific Ocean surrounding the Northwestern Hawaiian Islands are 
hereby designated as a national marine sanctuary for the purpose of 
providing long-term protection and management of the ecological, 
cultural, and historical resources and the conservation, recreational, 
scientific, educational, and esthetic qualities of the area.

Article I: Effect of Designation

    The NMSA authorizes the issuance of such regulations as are 
necessary and reasonable to implement the designation, including 
managing and protecting the ecological, cultural, and historical 
resources and the conservation, recreational, scientific, educational, 
and esthetic qualities of Papah[amacr]naumoku[amacr]kea National Marine 
Sanctuary (the ``sanctuary''). Section 1 of Article IV of these terms 
of designation lists those activities that may be regulated on the 
effective date of designation, or at some later date, in order to 
protect sanctuary resources and qualities. Listing an activity does not 
necessarily mean that it will be regulated. However, if an activity is 
not listed it may not be regulated, except on an emergency basis, 
unless Section 1 of Article IV is amended by the same procedures by 
which the original sanctuary designation was made.

Article II: Description of the Area

    The sanctuary encompasses the submerged lands, seamounts, and 
Pacific Ocean waters from the shoreline seaward to approximately 200 
nautical miles west of 163[deg] West Longitude surrounding the 
Northwestern Hawaiian Islands which consist of the islands, atolls, and 
emergent lands stretching from Nihoa in the southeast to 
H[omacr]lanik[umacr] (Kure Atoll) in the northwest. The marine waters 
east of 163[deg] West Longitude surrounding Nihoa extend seaward from 
the shoreline to approximately 50 nautical miles. The total area of the 
sanctuary comprises approximately 582,570 square miles (439,910 square 
nautical miles). The precise boundary coordinates are defined in 
Appendix A to the regulations at 15 CFR part 922, subpart W.

[[Page 4860]]

Article III: Special Characteristics of the Area

    Papah[amacr]naumoku[amacr]kea is a place of special national 
significance that provides large-scale ecosystem services for the 
region and the world. The marine habitat includes several 
interconnected ecosystems, including coral islands surrounded by 
shallow reef, deeper reef habitat characterized by seamounts, banks, 
and shoals scattered across the area of the sanctuary, mesophotic reefs 
with extensive algal beds, pelagic waters connected to the greater 
North Pacific Ocean, and deep-water habitats and abyssal plains 5,000 
meters below sea level. These connected ecosystems provide essential 
habitats for rare species such as the threatened green sea turtle and 
the endangered Hawaiian monk seal, as well as habitat for more than 14 
million seabirds that forage in the pelagic waters to nourish the 
chicks they are raising on the tiny islets. 
Papah[amacr]naumoku[amacr]kea is home to 20 cetacean species, protected 
by the Marine Mammal Protection Act, with some listed as endangered 
under the Endangered Species Act. At least a quarter of the nearly 
7,000 known marine species in the region are found nowhere else on 
Earth.
    The area of the sanctuary is also a place of historical and 
cultural significance. The area of the sanctuary includes the location 
of the Battle of Midway, a turning point in World War II for the allies 
in the Pacific Theater. Research indicates that 60-80 sunken military 
vessels and hundreds of sunken military aircraft are scattered across 
the seafloor. In addition to Navy steamers and aircraft, there are 
whaling ships, ancient Japanese sailing ships known as junks, motorized 
East Asian style fishing vessels known as Hawaiian fishing sampans, 
Pacific colliers, and other vessels from the 19th and 20th centuries.
    Papah[amacr]naumoku[amacr]kea is also a sacred place to Native 
Hawaiians, who regard the islands and wildlife as k[umacr]puna, or 
ancestors. The region holds deep cosmological and traditional 
significance to the people of Hawai[revaps]i and the Native Hawaiian 
culture, and contains a host of intact and significant archaeological 
sites found on the islands of Nihoa and Mokumanamana, both of which are 
on the National Register of Historic Places and Hawai[revaps]i Register 
of Historic Places. Papah[amacr]naumoku[amacr]kea is as much a 
spiritual space as it is a physical geographical area, rooted deep in 
Native Hawaiian creation and settlement stories.

Article IV: Scope of Regulations

Section 1. Activities Subject to Regulation
    The following activities are subject to regulation, including 
prohibition, as may be necessary to ensure the protection and effective 
management of the ecological, cultural, historical, conservation, 
recreational, scientific, educational, or esthetic resources or 
qualities of the area:
    1. Access to the sanctuary;
    2. Ship reporting, ship routeing, and other shipping activities;
    3. Vessel monitoring;
    4. Vessel discharge;
    5. Exploring for, developing, or producing oil, gas, or minerals, 
or any energy development activities;
    6. Using or attempting to use poisons, electrical charges, or 
explosives in the collection or harvest of a sanctuary resource;
    7. Introducing or otherwise releasing an introduced species from 
within or into the sanctuary;
    8. Deserting a vessel;
    9. Commercial fishing;
    10. Non-commercial fishing;
    11. Possessing fishing gear;
    12. Anchoring on or having a vessel anchored on any living or dead 
coral with an anchor, anchor chain, or anchor rope;
    13. Drilling into, dredging, or otherwise altering the submerged 
lands; or constructing, placing, or abandoning any structure, material, 
or other matter on the submerged lands;
    14. Removing, moving, taking, harvesting, possessing, injuring, 
disturbing, or damaging; or attempting to remove, move, take, harvest, 
possess, injure, disturb, or damage any living or nonliving sanctuary 
resource;
    15. Attracting any living sanctuary resource;
    16. Touching coral, living or dead;
    17. Swimming, snorkeling, or closed or open circuit SCUBA diving;
    18. Discharging or depositing any material or other matter, or 
discharging or depositing any material or other matter outside of the 
sanctuary that subsequently enters the sanctuary;
    19. Anchoring a vessel;
    20. Native Hawaiian practices;
    21. Research and scientific exploration;
    22. Scientific research and development by Federal agencies;
    23. Activities that will further the educational value of the 
sanctuary or will assist in the conservation and management of the 
sanctuary;
    24. Recreational activities; and
    25. Interfering with, obstructing, delaying, or preventing an 
investigation, search, seizure, or disposition of seized property in 
connection with enforcement of the NMSA or any regulation or permit 
issued under the NMSA.
    Listing an activity here means that the Secretary of Commerce can 
regulate the activity, after complying with all applicable laws, 
without going through the designation procedures required by paragraphs 
(a) and (b) of section 304 of the NMSA. No term of designation issued 
under the authority of the NMSA may take effect in Hawai[revaps]i state 
waters within the sanctuary if the Governor of Hawai[revaps]i certifies 
to the Secretary of Commerce that such term of designation is 
unacceptable within the review period specified in the NMSA.
Section 2. Emergencies
    Where necessary to prevent or minimize the destruction of, loss of, 
or injury to a sanctuary resource or quality, or to minimize the 
imminent risk of such destruction, loss, or injury, any and all 
activities, including those not listed in Section 1, are subject to 
immediate temporary regulation, including prohibition.

Article V: Alteration of This Designation

    The terms of designation, as defined under section 304(a)(4) of the 
NMSA, may be modified only by the same procedures by which the original 
designation is made, including public hearings, consultations with 
interested Federal, Tribal, State, regional, and local authorities and 
agencies, review by the appropriate Congressional committees, and 
approval by the Secretary of Commerce, or his or her designee.

III. Changes from Proposed to Final Regulations

    Based on public comments received between March 1 and May 7, 2024, 
internal deliberations, consultations, engagement with cooperating 
agencies, and meetings with constituents, NOAA has made the following 
changes to the proposed rule and corresponding changes to the final EIS 
and sanctuary management plan.

A. Definitions

    NOAA added the term ``categories of hazardous cargoes'' to 15 CFR 
922.24, the site-specific definitions. ``Categories of hazardous 
cargoes'' is defined in PMNM regulations, 50 CFR 404.3, and is added to 
the final regulations for consistency with existing regulations for 
ship reporting. Defining ``categories of hazardous cargoes'' provides 
clarity to the public on what information must be reported when 
conducting passage without interruption to comply with the

[[Page 4861]]

ship reporting requirements, as specified in the sanctuary regulations 
at 15 CFR 922.243.
    NOAA has made a minor revision to the term ``recreational 
activity,'' by striking ``within the Midway Atoll Special Management 
Area'' from the definition, making it consistent with the definition 
provided in Presidential Proclamation 8031 establishing the Monument.

B. Cooperative Management

    In response to public comments, NOAA has clarified how the 
sanctuary will be managed in partnership with other Federal and State 
agencies. In the proposed rule, NOAA proposed that the sanctuary would 
be co-managed with the State of Hawai[revaps]i. In the proposed 
regulations, NOAA identified the role that states may have in co-
managing a sanctuary pursuant to the National Marine Sanctuaries Act, 
if all or part of the proposed sanctuary is within the territorial 
limits of any state. Recognition of the State of Hawai[revaps]i as a 
sanctuary co-manager was not meant to exclude the other Monument co-
trustees, DOI and OHA. To the contrary, partnerships with other Federal 
and State agencies with overlapping jurisdiction are critical to the 
success of the National Marine Sanctuary System and the protection of 
marine areas of special national significance.
    In the final regulations, NOAA has renamed 15 CFR 922.242 
``Cooperative Management'' and added new text regarding how NOAA will 
manage the sanctuary in partnership with USFWS and OHA in addition to 
the State of Hawai[revaps]i. In doing so, NOAA reaffirms that the 
existing co-management structure of the Monument is critical to the 
success of the sanctuary. NOAA will work in cooperation with Monument 
co-trustees to update the Memorandum of Agreement for Promoting 
Coordinated Management of Papah[amacr]naumoku[amacr]kea Marine National 
Monument with the State of Hawai[revaps]i, DOI, and OHA that reflects 
the addition of the sanctuary, and specifically addresses how the 
addition of a sanctuary will supplement and complement, and not 
supplant, the existing Monument management framework.
    In the final regulations, NOAA recognizes USFWS's management 
authority over Midway Atoll National Wildlife Refuge and Hawaiian 
Islands National Wildlife Refuge. NOAA also clarifies that nothing in 
the regulations or establishment of the national marine sanctuary shall 
diminish USFWS's authority to administer Midway Atoll National Wildlife 
Refuge and Hawaiian Islands National Wildlife Refuge under the National 
Wildlife Refuge System Administration Act, as amended, and other USFWS 
authorities. Where Papah[amacr]naumoku[amacr]kea National Marine 
Sanctuary overlays Midway Atoll National Wildlife Refuge and Hawaiian 
Islands National Wildlife Refuge, NOAA will implement the NMSA to 
provide supplemental authority to protect resources. NOAA and USFWS are 
developing an agreement to provide details on the execution of 
sanctuary management where the national marine sanctuary overlaps with 
Midway Atoll National Wildlife Refuge and Hawaiian Islands National 
Wildlife Refuge.

C. Access

    In the proposed regulations, NOAA stated that a vessel may pass 
without interruption through the sanctuary without requiring a permit 
as long as the vessel does not stop, anchor, or engage in any 
prohibited activities. In the final regulations, NOAA has made a minor 
revision to 15 CFR 922.243(a)(5)(b), removing the word ``anchor'' from 
this statement. The removal of ``anchor'' is a technical revision 
because anchoring a vessel is already listed as a prohibited or 
otherwise regulated activity. In 15 CFR 922.243(c)(7), NOAA has added 
clarification on the events that would trigger ``further reports,'' 
including ``pollution incidents and goods lost overboard.'' This 
addition will help address potential threats and impacts to sanctuary 
resources in a timely manner from vessels transiting within the 
reporting area.
    In the proposed regulations, NOAA stated that access is prohibited 
except under certain circumstances. NOAA has clarified that the 
prohibition on access does not restrict scientific exploration or 
research activities by or for the Secretary of Commerce or the 
Secretary of the Interior when the activity occurs within the Outer 
Sanctuary Zone, consistent with the exception provided in 15 CFR 
922.244(f).
    Finally, in 15 CFR 922.243(c), NOAA has also made technical 
revisions, removing the list of vessels for which the ship reporting 
requirements do not apply. This information is redundant of the 
exceptions provided in 15 CFR 922.243(a)(1) through (a)(4).

D. Prohibited or Otherwise Regulated Activities

    NOAA has added a prohibition on failing to comply with vessel 
monitoring systems requirements in violation of 15 CFR 922.246; and a 
prohibition on failing to comply with ship reporting requirements in 
violation of 15 CFR 922.243. NOAA made these technical revisions to 
clarify for the public the full scope of activities listed that are 
prohibited or otherwise regulated within the sanctuary.
    NOAA has also made technical revisions and clarifications to the 
prohibition on discharging or depositing any material or other matter 
into the sanctuary, or discharging or depositing any material or other 
matter outside of the sanctuary that subsequently enters the sanctuary 
and injures or has the potential to injure any resources of the 
sanctuary. Specifically, NOAA has clarified the list of exceptions to 
this prohibition for consistency with Presidential Proclamation 8031, 
the implementing regulations at 50 CFR part 404, and other applicable 
law such as the Clean Water Act. For example, consistent with existing 
law in the Monument, NOAA has clarified that this prohibition does not 
apply to fish, fish parts, or chumming materials (bait) used in or 
resulting from lawful fishing activities, provided that such discharge 
or deposit is during the conduct of lawful fishing activities within 
the Sanctuary. In addition, NOAA has clarified that the exceptions for 
``discharge incidental to vessel operations,'' and the discharges 
within Special Preservation Areas or the Midway Atoll Special 
Management Area may only be conducted in accordance with other 
applicable law, such as the Clean Water Act and its implementing 
regulations.
    In the proposed rule, NOAA provided exceptions to vessel discharge 
when conducting passage without interruption under 15 CFR 922.243, but 
did not clarify that this exception also applies to the discharge 
prohibition under 15 CFR 922.244. NOAA has made these revisions in 15 
CFR 922.244 to provide clarity to resource managers and the public, and 
consistency with existing Monument management. NOAA has made 
corresponding changes to the regulations at 15 CFR 922.243, removing 
the list of vessel discharge exceptions from this section. This 
revision is not substantive.

E. Exemption for Non-Commercial Fishing

    In the proposed rule, NOAA proposed that eight prohibited or 
otherwise regulated activities in 15 CFR 922.244 would not apply to 
non-commercial fishing activities in the Outer Sanctuary Zone 
authorized by regulations promulgated pursuant to the Magnuson-Stevens 
Fishery Conservation and Management Act (MSA), provided that no sale of 
harvested fish occurs. In response to comments of concern for this 
exemption, NOAA has made changes to ensure that a non-

[[Page 4862]]

commercial fishing permit authorized pursuant to the MSA is only exempt 
from a limited subset of prohibited or otherwise regulated activities 
in the Outer Sanctuary Zone, which may only be conducted as incidental 
to and necessary to conduct lawful non-commercial fishing activity.
    First, NOAA has removed the exemption for ``touching coral, living 
or dead,'' as this activity is not expected to occur as incidental to a 
lawful non-commercial fishing activity.
    Second, NOAA has removed the exemption for ``discharging or 
depositing any material or other matter into the sanctuary, or 
discharging or depositing any material or other matter outside of the 
sanctuary that subsequently enters the sanctuary and injures or has the 
potential to injure any resources of the sanctuary, with exceptions.'' 
NOAA has determined that non-commercial fishing activities authorized 
under the MSA do not require a broad exemption for discharge, and 
should be held to similar standards as other vessels. As described 
above, NOAA has also clarified the types of discharge that would not be 
regulated, including ``fish, fish parts, or chumming materials (bait) 
used in or resulting from lawful fishing activity, provided that such 
discharge or deposit is during the conduct of lawful fishing activity 
within the Sanctuary.'' This exception is consistent with Presidential 
Proclamation 8031, and the existing regulations for PMNM at 50 CFR 
404.7.
    Third, NOAA has removed the exemption for anchoring a vessel. NOAA 
has concluded that this activity should not occur as incidental to a 
lawful non-commercial fishing activity in the Outer Sanctuary Zone. 
Anchoring a vessel in the Outer Sanctuary Zone would not be practical 
given the average ocean depths within this area of the sanctuary.
    NOAA has also clarified that this exemption from the sanctuary's 
permitting requirements is only applicable provided that the fish 
harvested, either in whole or in part, are neither intended to enter 
commerce nor enter commerce through sale, barter, or trade, and that 
the resource is managed sustainably, consistent with Presidential 
Proclamation 9478. Moreover, consistent with the outcome of the NMSA 
Section 304(a)(5) process, for the exemption to apply, the fish 
harvested, either in whole or in part, are not intended to be sold and 
shall not be sold for any purposes, including, but not limited to, 
cost-recovery. Finally, NOAA has clarified that the activities under 
paragraph (a)(9) through (12), and (a)(14) may only be conducted as 
incidental and necessary to conduct lawful non-commercial fishing 
activities.

F. Permit Procedures and Criteria

    In the proposed regulations, NOAA proposed two new general permit 
categories specific to the sanctuary: (i) Native Hawaiian Practices; 
and (ii) Recreation. In the final regulations, NOAA maintains these two 
general permit categories in 15 CFR 922.30. For ease of reference, NOAA 
has moved the additional permit issuance criteria and requirements to 
the site-specific regulations for the proposed sanctuary at 15 CFR 
922.245. This revision is not substantive. NOAA has also made a 
revision to the additional permit issuance criteria for Recreation 
permits. NOAA has amended the permitting criteria at 15 CFR 922.245 to 
clarify that a ``recreational activity'' may only be permitted within 
the Midway Atoll Special Management Area, consistent with existing 
regulations for the Monument.
    Finally, as described below, NOAA moved the Vessel Monitoring 
System (VMS) requirements from 15 CFR 922.245 to a standalone section 
at 15 CFR 922.246. NOAA retained, with minor edits, the requirement to 
outfit a vessel with a NOAA Office of Law Enforcement (OLE) type-
approved VMS unit, as a condition of a permit. This is consistent with 
the regulations implementing Presidential Proclamation 8031 at 50 CFR 
part 404, and specifically, the permitting findings that must be made 
under 50 CFR 404.11(d).

G. Vessel Monitoring System

    In the proposed rule, NOAA proposed, as a part of the permit 
procedures and criteria under 15 CFR 922.245, that an owner or operator 
of a vessel that has been issued a sanctuary general permit or special 
use permit must ensure that such vessel has a NOAA OLE type-approved 
VMS on board when operating within the sanctuary. In the final 
regulations, NOAA has moved the VMS requirements to a standalone 
section at 15 CFR 922.246 for consistency with the regulations 
implementing Presidential Proclamation 8031 at 50 CFR part 404. NOAA 
also made non-substantive technical changes to the VMS requirements to 
more closely align with the Monument's implementing regulations, 
specifically 50 CFR 404.5.

H. Sunken Military Craft

    NOAA has added new text regarding the Sunken Military Craft Act 
acknowledging that sunken military craft in the sanctuary will continue 
to be administered by the respective Secretary concerned pursuant to 
the Sunken Military Craft Act. NOAA will enter into a Memorandum of 
Agreement with the appropriate agencies regarding collaboration on 
implementing the Sunken Military Craft Act.

I. Emergency Regulations

    NOAA has added information to Section IV of this final rule 
describing emergency regulations. This is a technical clarification of 
a regulatory provision that applies to all national marine sanctuaries, 
pursuant to the National Marine Sanctuary Program Regulations at 15 CFR 
922 subpart A--Regulations of General Applicability. Adding this to the 
final rule provides clarity to the public on a supplemental authority 
that is provided through sanctuary designation.

J. Technical Edits

    In addition to the changes discussed above, NOAA has made technical 
edits throughout this final rule. Many of these technical edits are 
necessary to conform with revisions to 15 CFR part 922 that became 
effective on October 16, 2024. These technical edits are not 
substantive. NOAA has also made two minor changes to the terms of 
designation that were included in the proposed rule. First, NOAA has 
added more detail to one sentence describing the special 
characteristics of the area. Second, NOAA has added ``ship reporting, 
ship routeing, and other shipping activities'' to the list of 
activities subject to regulation in Article IV of the terms of 
designation to reflect the full scope of activities that may be 
regulated. In the draft terms of designation, NOAA only included ``ship 
reporting.''

IV. Summary of Final Regulations

A. Adding New Subpart W

    NOAA is amending 15 CFR part 922 by adding a new subpart (subpart 
W) that contains site-specific regulations for the sanctuary. This 
subpart will include the boundary, contain definitions of common terms 
used in the new subpart, identify prohibited activities and exceptions, 
and establish procedures for permitting otherwise prohibited 
activities. The regulations will be applied in accordance with 
generally recognized principles of international law and in accordance 
with treaties, conventions, and other agreements to which the United 
States is a party, consistent with sections 305(a) and 307(k) of the 
NMSA and the NMSA's Regulations of General Applicability at 15 CFR 
922.1(b). No regulation shall

[[Page 4863]]

apply to or be enforced against a person who is not a citizen, 
national, or resident alien of the United States unless in accordance 
with generally recognized principles of international law, or 
applicable treaties, conventions, and other agreements.

B. Sanctuary Boundary

    NOAA's designation of Papah[amacr]naumoku[amacr]kea National Marine 
Sanctuary consists of the marine environment surrounding the 
Northwestern Hawaiian Islands from the shoreline of the islands and 
atolls seaward to 200 nautical miles, including all waters of the 
Monument. NOAA estimates the area encompassed in the designation is 
approximately 582,570 square miles (439,910 square nautical miles).

C. Definitions

    This rule incorporates and adopts common terms defined in the 
national regulations at 15 CFR 922.11. In addition, NOAA is including 
20 site-specific definitions. To the extent that a term appears at 15 
CFR 922.11 and the definitions section of the final rule, the 
definition in the final rule would govern.
     The definitions for ``Bottomfish Species'' and ``Pelagic 
Species'' are adopted from regulations for Fisheries in the Western 
Pacific, 50 CFR 665.201 and 50 CFR 665.800.
     ``Ecological integrity'', ``Midway Atoll Special 
Management Area'', ``Native Hawaiian practices'', ``Pono'', 
``Recreational activity'', ``Special Preservation Area (SPA)'', 
``Stowed and not available for immediate use'', ``Sustenance fishing'', 
and ``Vessel monitoring system or VMS'', are adopted from Presidential 
Proclamation 8031.
     ``Commercial fishing'' and ``Non-commercial fishing'' are 
adopted from the MSA and, in part, from regulations for Fisheries in 
the Western Pacific, 50 CFR 665.12.
     ``Particularly Sensitive Sea Area (PSSA)'' is adopted from 
International Maritime Organization (IMO) Resolution A.982(24), 
December 1, 2005.
     ``Areas to be avoided (ATBA)'', ``Categories of hazardous 
cargoes'' and ``Office of Law Enforcement'' are adopted from 
Papah[amacr]naumoku[amacr]kea Marine National Monument regulations, 50 
CFR 404.3.
     ``Outer Sanctuary Zone'' refers to the area of the 
sanctuary that would extend from approximately 50 nautical miles from 
all the islands and emergent lands of the Northwestern Hawaiian Islands 
to the extent of the seaward limit of the United States Exclusive 
Economic Zone west of 163[deg] West Longitude. This area of the 
sanctuary would correspond with the area designated as a marine 
national monument by Presidential Proclamation 9478, referred to as the 
``Papah[amacr]naumoku[amacr]kea Marine National Monument Expansion'' or 
MEA. NOAA provides this definition to provide clarity to the public 
where there is a regulation that only applies to this area of the 
sanctuary, and not the entire sanctuary. Note that the MEA and the 
Outer Sanctuary Zone are coextensive. In this final rule, when 
describing the sanctuary regulations, the term ``Outer Sanctuary Zone'' 
is used, and when describing the directives of Presidential 
Proclamation 9478, the term ``MEA'' is used.
     ``Reporting Area'' refers to the area of the sanctuary 
that extends outward ten nautical miles from the PSSA boundary, as 
designated by the IMO, and excludes the ATBAs that fall within the PSSA 
boundary. The reporting area is defined by the coordinates set forth in 
Appendix E to the final rule. NOAA defines the ``reporting area'' to 
clarify which areas of the sanctuary apply to ship reporting 
requirements.
     ``Scientific instrument'' is a term used in Presidential 
Proclamation 9478, but the term was not defined. Specifically, 
Presidential Proclamation 9478 prohibits ``drilling into, dredging, or 
otherwise altering the submerged lands, or constructing, placing, or 
abandoning any structure, material, or other matter on the submerged 
lands, except for scientific instruments''. NOAA defines ``scientific 
instrument'' to clarify what activities may be conducted pursuant to a 
permit. NOAA defines ``scientific instrument'' to mean ``a device, 
vehicle, or tool used for scientific purposes and is inclusive of 
structures, materials, or other matter incidental to proper use of such 
device, vehicle, or tool.'' In defining ``scientific instrument,'' 
NOAA's definition provides for the inclusion of ``structures, 
materials, or other matter incidental to proper use of such device, 
vehicle, or tool'' because, based on the type of activities previously 
permitted in the Monument, proper deployment and use of most scientific 
instruments requires more than the instrument itself. For example, 
there may be incidental ballast discharge associated with the use of a 
scientific instrument like a remotely operated vehicle, or ROV. A 
narrower definition of ``scientific instrument'' could unduly restrict 
NOAA's ability to permit activities in the area of the sanctuary that 
overlaps with the MEA. NOAA believes a narrower definition would be 
inconsistent with the intent of Presidential Proclamation 9478, which 
states ``Undisturbed seamount communities in the adjacent area are of 
significant scientific interest because they provide opportunities to 
examine the impacts of physical, biological, and geological processes 
on ecosystem diversity, including understanding the impacts of climate 
change on these deep-sea communities. These seamounts and ridges also 
provide the opportunity for identification and discovery of many 
species not yet known to humans, with possible implications for 
research, medicine, and other important uses. Recent scientific 
research, utilizing new technology, has shown that many species 
identified as objects in Proclamation 8031 inhabit previously unknown 
geographical ranges that span beyond the existing Monument, and in some 
cases the adjacent area also provides important foraging habitat for 
these species.'' These statements clearly demonstrate the significant 
scientific value of the MEA and underscore the opportunities for 
research and discovery to occur in the sanctuary.

D. Cooperative Management of the Sanctuary

    Pursuant to the NMSA, states may choose to have a role in co-
managing a sanctuary if all or part of the sanctuary is within the 
territorial limits of any state. As the sanctuary includes state 
waters, NOAA will co-manage the sanctuary with the State of 
Hawai[revaps]i. NOAA establishes the framework for co-management in 
section 922.242 of the final regulations NOAA and the State of 
Hawai[revaps]i may update existing agreements or develop additional 
agreements as necessary to provide details on the execution of 
sanctuary management, such as activities, programs, and permitting that 
can be updated to adapt to changing conditions or threats to the 
sanctuary resources.
    NOAA and the State of Hawai[revaps]i will manage the sanctuary in 
partnership with the USFWS and OHA consistent with the management of 
the Monument. The existing co-management structure of the Monument will 
be critical to the success of the sanctuary. NOAA will work in 
cooperation with the Monument co-trustees to update the Memorandum of 
Agreement for Promoting Coordinated Management of 
Papah[amacr]naumoku[amacr]kea Marine National Monument with the State 
of Hawai[revaps]i, DOI, and OHA that reflects the addition of the 
sanctuary, and specifically addresses how the addition of a sanctuary 
will supplement and complement, and not supplant, existing Monument 
management. This is

[[Page 4864]]

consistent with the existing Memorandum of Agreement, which includes a 
provision that states that ``in the event of the designation of the 
Monument or any portion of the Monument as a National Marine Sanctuary 
under the National Marine Sanctuaries Act, nothing herein shall be 
construed as automatically terminating or otherwise amending this 
Agreement.'' NOAA may enter into additional Memorandums of Agreement 
with the Monument co-trustees regarding this collaboration that may 
address, but not be limited to, sanctuary resource protection, 
educational programs, permitting, enforcement, research activities, 
development, and threats to resources. Any future proposed changes to 
sanctuary regulations or boundaries would be coordinated with the State 
and other Monument co-trustees and subject to public review as mandated 
by the NMSA and other Federal statutes.
    The Secretary of the Interior, through the USFWS, has sole 
responsibility for management of the areas of the Monument that overlay 
the Midway Atoll National Wildlife Refuge, the Battle of Midway 
National Memorial, and the Hawaiian Islands National Wildlife Refuge, 
and exercises that responsibility in consultation with the Secretary of 
Commerce. Nothing in these regulations or establishment of the national 
marine sanctuary shall diminish USFWS's authority to administer Midway 
Atoll National Wildlife Refuge and Hawaiian Islands National Wildlife 
Refuge under the National Wildlife Refuge System Administration Act as 
amended, and other USFWS authorities. Where 
Papah[amacr]naumoku[amacr]kea National Marine Sanctuary overlays Midway 
Atoll National Wildlife Refuge and Hawaiian Islands National Wildlife 
Refuge, NOAA will implement the NMSA to provide supplemental authority 
to protect resources.
    NOAA, in exercising its management authority under National Marine 
Sanctuaries Act Section 304(d), recognizes USFWS' management authority 
over Midway Atoll National Wildlife Refuge and Hawaiian Islands 
National Wildlife Refuge under the National Wildlife Refuge System 
Administration Act.
    The Director of the USFWS has agreed that 
Papah[amacr]naumoku[amacr]kea National Marine Sanctuary will provide 
supplemental authorities where the sanctuary overlays the Midway Atoll 
National Wildlife Refuge and Hawaiian Islands National Wildlife Refuge. 
NOAA and USFWS are developing an agreement to memorialize this 
decision, and to provide details on the execution of sanctuary 
management where the national marine sanctuary overlaps with Midway 
Atoll National Wildlife Refuge and Hawaiian Islands National Wildlife 
Refuge, consistent with the spirit of cooperative management of the 
area and recognizing USFWS has sole authority in Midway Atoll National 
Wildlife Refuge and Hawaiian Islands National Wildlife Refuge pursuant 
to the National Wildlife Refuge System Administration Act.
    Implementation of NOAA and USFWS authorities shall not enlarge or 
diminish the jurisdiction of the State of Hawai[revaps]i, including the 
State's responsibilities and requirements to manage Kure Atoll Wildlife 
Sanctuary and the State of Hawai[revaps]i Northwestern Hawaiian Islands 
Marine Refuge.

E. Access

    In PMNM, pursuant to Presidential Proclamation 8031, access is 
prohibited except under the following circumstances: (1) for emergency 
response and law enforcement purposes; (2) for activities and exercises 
of the Armed Forces; (3) for persons who have been issued Monument 
permits; and (4) for passage without interruption. For consistency, and 
to protect sanctuary resources, NOAA extends the access restrictions 
which apply to the area of the sanctuary that overlaps the PMNM to the 
area of the sanctuary that overlaps with the MEA as follows:
    Access to the sanctuary is prohibited and thus unlawful except 
under the following circumstances: (1) for emergency response actions, 
law enforcement activities, and activities and exercises of the Armed 
Forces; (2) pursuant to a sanctuary permit; (3) when conducting non-
commercial fishing activities in the Outer Sanctuary Zone authorized 
under the MSA in accordance with 15 CFR 922.244 (d); (4) when 
conducting scientific exploration or research activities by or for the 
Secretary of Commerce or the Secretary of the Interior when the 
activity occurs within the Outer Sanctuary Zone); and (5) when passing 
through the sanctuary without interruption.
    A vessel may pass without interruption through the sanctuary 
without requiring a permit as long as the vessel does not stop or 
engage in prohibited activities within the sanctuary. A vessel passing 
through the sanctuary without interruption may be subject to the ship 
reporting system, as described below.
    The access restrictions will be applied in accordance with 
generally recognized principles of international law and in accordance 
with treaties, conventions, and other agreements to which the United 
States is a party, consistent with sections 305(a) and 307(k) of the 
NMSA and the NMSA's Regulations of General Applicability at 15 CFR 
922.1(b). No regulation shall apply to or be enforced against a person 
who is not a citizen, national, or resident alien of the United States 
unless in accordance with generally recognized principles of 
international law, or applicable treaties, conventions, and other 
agreements.

F. Ship Reporting

    The final rule includes regulations to implement the ship reporting 
system (CORAL SHIPREP) adopted by the IMO, which require entrance and 
exit notifications for vessels that pass without interruption through 
the sanctuary areas contained within a reporting area. Requiring 
vessels to notify NOAA immediately upon entering the reporting area 
will help make the vessel operators aware that they are traveling 
through a fragile area with potential navigational hazards, such as the 
extensive coral reefs found in many shallow areas of the sanctuary 
contained within the reporting area.
    The ship reporting requirements apply to vessels that pass through 
the sanctuary without interruption. Conversely, the ship reporting 
requirements do not apply to vessels covered by an exemption at 15 CFR 
922.243(a)(1) through (a)(4), or to sovereign immune vessels, which are 
specifically exempted from the reporting requirement in the ship 
reporting system adopted by the IMO. Furthermore, the ship reporting 
requirements will be applied in accordance with generally recognized 
principles of international law and in accordance with treaties, 
conventions, and other agreements to which the United States is a 
party, consistent with sections 305(a) and 307(k) of the NMSA and the 
NMSA's Regulations of General Applicability at 15 CFR 922.1(b). No 
regulation shall apply to or be enforced against a person who is not a 
citizen, national, or resident alien of the United States unless in 
accordance with generally recognized principles of international law, 
or applicable treaties, conventions, and other agreements.
    NOAA defines the reporting area as ``the area of the sanctuary that 
extends outward ten nautical miles from the PSSA [Particularly 
Sensitive Sea Area] boundary, as designated by the IMO, and excludes 
the ATBAs [Areas to be avoided] that fall within the PSSA boundary.'' 
The reporting area is further defined by the coordinates set forth in 
Appendix E to the final rule. Appendix E includes a coordinates table 
for the

[[Page 4865]]

``Reporting Area Outer Boundary,'' which contains the reporting area's 
boundary surrounding the PSSA. Appendix E also includes coordinate 
tables for the ``Inner Reporting Area Boundary'' for each of the four 
ATBAs that fall within the PSSA, but which are not part of the 
reporting area.
    The reporting area for the sanctuary will not include the four 
voluntary ATBAs adopted by the IMO that are also within the PSSA. An 
ATBA is an area within which either navigation is particularly 
hazardous or it is exceptionally important to avoid casualties. While 
ATBAs can be mandatory (i.e., vessels are required by applicable law to 
avoid and operate outside of the area) most are voluntary and vessels 
may travel through them. Because the four ATBAs in the PSSA are 
voluntary, as adopted by the IMO and implemented by these regulations, 
the ATBAs are outside of the reporting area. Nonetheless, by virtue of 
entering or exiting an ATBA, vessels would also be departing or 
entering the reporting area, and, therefore be subject to the reporting 
area's requirements four times: (1) once when it enters the reporting 
area; (2) once when it leaves the reporting area to enter the ATBA; (3) 
once when it exits the ATBA and enters the reporting area on the other 
side of the ATBA; and (4) once when it again leaves the reporting area. 
The potential burden of reporting four times is justified by the 
navigational hazards that exist within the ATBAs. The reporting area 
also includes three large areas within the PSSA that are not within the 
ATBAs. These breaks between the four ATBAs allow for north-south 
passages through the sanctuary areas contained within the reporting 
area that can be utilized for navigation to avoid ATBAs. Vessels 
passing through the sanctuary in these areas would only send email 
notification twice: once upon entering the reporting area, and again 
upon leaving the reporting area.
    NOAA will implement CORAL SHIPREP's requirements under the NMSA in 
keeping with the United States' and IMO's long-standing interest in 
providing additional protection to the natural, cultural, and historic 
resources in PMNM through ship reporting requirements. In June 2006, 
Presidential Proclamation 8031 directed the Secretary of Commerce and 
Secretary of Interior to require notification from any person passing 
through PMNM without interruption at least 72 hours, but no longer than 
1 month, prior to the entry date, and within 12 hours of departure. 
Presidential Proclamation 8031 further indicated the specific types of 
information that must be provided in the notification. These 
notification requirements were subsequently codified in 50 CFR 404.4. 
Presidential Proclamation 8031 also directed the Secretary of State, in 
consultation with the Secretary of Commerce and Secretary of Interior, 
to seek the cooperation of other governments and international 
organizations in furtherance of the purposes of the proclamation and 
consistent with applicable regional and multilateral arrangements for 
the protection and management of special marine areas.
    Following Executive Order 13178 and Presidential Proclamation 8031, 
in April 2007 the United States proposed to the IMO that PMNM be 
designated as a PSSA to protect the attributes of the fragile and 
integrated coral reef ecosystem from potential hazards associated with 
international shipping activities. The U.S. noted in its proposal that 
the proposed PSSA and its associated protective measures would result 
in a minimal burden to international shipping, would significantly 
further increase maritime safety, would protect of the fragile 
environment, would preserve cultural resources and areas of cultural 
importance significant to Native Hawaiians, and would facilitate 
responses to developing maritime emergencies. On April 3, 2008, the IMO 
designated the PMNM as a PSSA. As part of the PSSA designation process, 
the IMO adopted U.S. proposals for associated protective measures. 
These measures included expanding and consolidating the six existing 
recommendatory ATBAs in the PMNM into four larger areas and enlarging 
the class of vessels to which they apply. In addition, the IMO adopted 
a ship reporting system for vessels transiting the PMNM, which is 
mandatory for ships 300 gross tons or greater that are entering or 
departing a U.S. port or place and recommended for other ships. The 
system requires that ships notify the U.S. shore-based authority (i.e., 
the U.S. Coast Guard; NOAA will be receiving all messages associated 
with this program on behalf of the Coast Guard) at the time they begin 
transiting the reporting area and again when they exit. In December 
2008, NOAA and the USFWS published final regulations to establish a 
ship reporting system for PMNM, which implemented measures adopted by 
the IMO requiring notification by ships passing through PMNM without 
interruption (73 FR 73592). These regulations modified the previous 
notification requirements at 50 CFR 404.4.
    NOAA will implement the ship reporting system as adopted by the IMO 
and establish the reporting area using the boundary coordinates in 
Appendix E to this final rule to provide additional protection to the 
natural, cultural, and historic resources in the sanctuary. 
Accordingly, NOAA's regulations build upon the requirements outlined in 
Presidential Proclamation 8031, and reflect additions made through the 
IMO's adoption of a ship reporting system and the implementation of 
that system in 50 CFR 404.4. NOAA provides minor language changes from 
the process adopted by IMO Resolution MEPC.171(57) and IMO Resolution 
MSC.279(85) to provide clarity to the public on which vessels are 
required to participate in ship reporting and the type of information 
that should be reported.

G. Activities That Are Prohibited or Otherwise Regulated

    NOAA will supplement and complement existing management of this 
area through prohibited or otherwise regulated activities in section 
922.244. Presidential Proclamations 8031, 8112, and 9478, and 
regulations implementing Presidential Proclamations 8031 and 8112 at 50 
CFR part 404 provide the foundation for the prohibitions. However, 
minor changes are made to remove discrepancies and gaps in prohibitions 
and regulated activities between PMNM and the MEA in order to allow for 
consistency in management across the sanctuary.
    Within PMNM, the prohibitions in section 922.244 are already 
effectively in place under 50 CFR part 404, except for prohibitions 1 
and 4 (detailed below). Minor changes are made to prohibitions 1 and 4 
to remove discrepancies across the two zones (PMNM and MEA). 
Regulations implementing Presidential Proclamation 9478 have not been 
promulgated for the MEA. Many of the prohibitions adopted in the rule 
are identified in Presidential Proclamation 9478, which established the 
MEA. Any prohibitions for the area of the sanctuary that overlaps with 
the MEA that are not adopted directly from Presidential Proclamation 
9478 are identified below.
1. Prohibition on Exploring for, Developing, or Producing Oil, Gas, or 
Minerals, or Any Energy Development Activities
    Consistent with the presidential proclamations establishing the 
Monument, NOAA prohibits exploring for, developing, or producing oil, 
gas, or minerals to protect sanctuary resources and create a seamless 
management area

[[Page 4866]]

throughout the sanctuary. The addition of the prohibition on ``any 
energy development activities'' would be new for PMNM, and was added to 
further the underlying intent of the prohibition on oil, gas, and 
mineral development by accounting for technological advances in other 
forms of energy development.
    In addition to creating consistency across the two zones, this 
prohibition will help advance the sanctuary's goals and objectives by 
protecting sensitive marine ecosystems such as fragile coral reefs and 
deep-sea corals, benthic habitat, and seamounts. Prohibiting oil, gas, 
and mineral development reduces the risk of offshore spills, such as 
the Deepwater Horizon oil spill, that could significantly harm 
sanctuary resources. Deep seabed mining, oil and gas drilling, and 
other energy development activities, such as renewable energy system 
installation, destroys fragile benthic habitat, releases sequestered 
carbon, and spreads sediment plumes that can suffocate both sensitive 
shallow and deep-sea coral reefs, which negatively impacts nursery and 
foraging habitat for fish, and reduces the ecosystem's overall 
resilience.
2. Prohibition on Using or Attempting To Use Poisons, Electrical 
Charges, or Explosives in the Collection or Harvest of a Sanctuary 
Resource
    This prohibition is consistent with prohibitions identified in the 
presidential proclamations establishing the Monument.
3. Prohibition on Introducing or Otherwise Releasing an Introduced 
Species From Within or Into the Sanctuary
    This prohibition is consistent with prohibitions identified in the 
presidential proclamations establishing the Monument.
4. Prohibition on Deserting a Vessel
    Deserting a vessel is currently a regulated activity (allowed only 
with a permit) in PMNM pursuant to Presidential Proclamation 8031. 
Deserting a vessel is a prohibited activity in the MEA pursuant to 
Presidential Proclamation 9478. Based on NOAA's experience in managing 
national marine sanctuaries, NOAA does not see a need to permit this 
activity. Prohibiting this activity will create consistency in 
management across the sanctuary and help to prevent desertion of a 
vessel following a sinking, grounding, or other incident. Prevention is 
much less expensive than responding to a deserted vessel and can 
optimally prevent impacts and damage to sanctuary resources as well as 
to private property.
5. Prohibition on Anchoring on or Having a Vessel Anchored on Any 
Living or Dead Coral With an Anchor, Anchor Chain, or Anchor Rope
    This prohibition is consistent with prohibitions identified in the 
presidential proclamations establishing the Monument.
6. Prohibition on Commercial Fishing or Possessing Commercial Fishing 
Gear Except When Stowed and Not Available for Immediate Use
    Presidential Proclamation 8031 provided that commercial fishing for 
bottomfish and pelagic fish in PMNM that was permitted by NOAA prior to 
June 16, 2006 was allowed to continue for 5 years from the date of the 
proclamation, until June 15, 2011. After that date, Presidential 
Proclamation 8031 prohibited commercial fishing for bottomfish and 
associated pelagic species in PMNM. Presidential Proclamation 9478 also 
prohibits commercial fishing, as well as possessing commercial fishing 
gear except when stowed and not available for immediate use during 
passage without interruption in the MEA. With these sanctuary 
regulations, NOAA provides a sanctuary-wide prohibition on commercial 
fishing or possessing commercial fishing gear except when stowed and 
not available for immediate use to be consistent with the presidential 
proclamations establishing the Monument.
7. Prohibition on Failing To Comply With Vessel Monitoring Systems 
Requirements in Violation of Sec.  922.246
    This prohibition is consistent with requirements identified in 
Presidential Proclamation 8031. The VMS requirement for permittees 
operating within the areas of the sanctuary that overlap with the MEA 
would be a new requirement. Further discussion of the VMS requirements 
is included within Section IV. L. of this final rule.
8. Prohibition on Failing To Comply With Ship Reporting Requirements in 
Violation of Sec.  922.243
    This prohibition is consistent with the requirements of the ship 
reporting system (CORAL SHIPREP), as adopted by the IMO and implemented 
in PMNM under 50 CFR 404.4. Further discussion of the ship reporting 
system requirements is included within Section IV.F of this final rule.
9. Prohibition on Non-Commercial Fishing or Possessing Non-Commercial 
Fishing Gear Except When Stowed and Not Available for Immediate Use
    The presidential proclamations establishing the Monument broadly 
restrict the harvest of fishery resources by prohibiting removing, 
moving, taking, harvesting, possessing, injuring, disturbing, or 
damaging any living or nonliving monument resource, as well as attempts 
to do the same, except as may be allowed with a permit. As noted above, 
Presidential Proclamations 8031 and 9478 further specify prohibitions 
on commercial fishing and the possession of commercial fishing gear. 
The presidential proclamations also identify certain types of non-
commercial fishing that may be regulated (i.e., allowed pursuant to a 
permit or incidental to a permitted activity). Presidential 
Proclamation 8031, for example, authorizes sustenance fishing 
incidental to an activity permitted in PMNM. Presidential Proclamation 
9478, for example, provides that non-commercial fishing is a regulated 
activity (i.e., allowed only with a permit) in the MEA. In the 
sanctuary, for consistency with the proclamations, NOAA will prohibit 
``non-commercial fishing'' unless conducted pursuant to a sanctuary 
permit or, as discussed below, authorized under the MSA in the Outer 
Sanctuary Zone. The final rule adopts the definition of ``non-
commercial fishing'' from the regulations for Fisheries in the Western 
Pacific, which is defined as ``fishing that does not meet the 
definition of commercial fishing in the MSA, and includes, but is not 
limited to, sustenance, subsistence, traditional indigenous, and 
recreational fishing.'' 50 CFR 665.12.
    The final rule also provides that ``possessing non-commercial 
fishing gear except when stowed and not available for immediate use'' 
is prohibited unless conducted pursuant to a sanctuary permit or, as 
discussed below, authorized under the MSA in the Outer Sanctuary Zone. 
Presidential Proclamation 8031 includes ``possessing fishing gear,'' as 
a regulated activity (allowed only with a permit) in PMNM. Presidential 
Proclamation 9478 prohibits possessing commercial fishing gear. The 
final rule creates continuity between the two areas, and aims to 
prevent non-commercial gear from being utilized in an unauthorized 
manner that could lead to injury to sanctuary resources.

[[Page 4867]]

10. Prohibition on Drilling Into, Dredging, or Otherwise Altering the 
Submerged Lands; or Constructing, Placing, or Abandoning Any Structure, 
Material, or Other Matter on the Submerged Lands
    This activity is a regulated activity (i.e., allowed only with a 
permit) in PMNM under Presidential Proclamation 8031. In the MEA, 
Presidential Proclamation 9478 prohibits this type of activity, except 
when conducted for the use of scientific instruments, which is allowed 
only with a permit, subject to such terms and conditions as the 
Secretaries deem appropriate. In the sanctuary, these activities are 
prohibited unless conducted pursuant to a sanctuary permit. In the 
Outer Sanctuary Zone, such a permit may only be issued for scientific 
instruments.
11. Prohibition on Removing, Moving, Taking, Harvesting, Possessing, 
Injuring, Disturbing, or Damaging; or Attempting To Remove, Move, Take, 
Harvest, Possess, Injure, Disturb, or Damage Any Living or Nonliving 
Sanctuary Resource
    These activities are prohibited unless conducted pursuant to a 
sanctuary permit, consistent with the presidential proclamations 
establishing the Monument.
12. Prohibition on Attracting Any Living Sanctuary Resource
    This activity is prohibited unless conducted pursuant to a 
sanctuary permit. This prohibition is consistent with a regulated 
activity identified in Presidential Proclamation 8031 for PMNM. This 
prohibition is new in the area of sanctuary that overlaps with the MEA. 
Prohibiting this activity is intended to address the potential for 
harassment and disturbance from human interactions with living 
sanctuary resources.
13. Prohibition on Touching Coral, Living or Dead
    This activity is prohibited unless conducted pursuant to a 
sanctuary permit. This prohibition is consistent with a regulated 
activity (i.e., allowed only with a permit) identified in Presidential 
Proclamation 8031 for PMNM. This prohibition would be new for the area 
of sanctuary that overlaps with the MEA. However, prohibition 10 
(above) effectively includes this activity, as touching coral is 
considered a disturbance which may cause injury or damage. Therefore, 
regulating this activity in the Outer Sanctuary Zone is primarily a 
technical addition which provides clarity to the public and resource 
managers.
14. Prohibition on Swimming, Snorkeling, or Closed or Open Circuit 
SCUBA Diving
    These activities are prohibited unless conducted pursuant to a 
sanctuary permit. This prohibition is consistent with a regulated 
activity identified in Presidential Proclamation 8031 for any Special 
Preservation Area or the Midway Atoll Special Management Area. This 
prohibition would be new for areas of PMNM that fall outside of any 
Special Preservation Area or the Midway Atoll Special Management Area, 
and for the MEA. Expanding this regulated activity to the entire area 
of the proposed sanctuary allows NOAA to ensure that all in-water 
activities are done in compliance with the permit findings criteria and 
requirements, and are consistent with the care and management of 
sanctuary resources.
15. Prohibition on Discharging or Depositing Any Material or Other 
Matter Into the Sanctuary, or Discharging or Depositing Any Material or 
Other Matter Outside of the Sanctuary That Subsequently Enters the 
Sanctuary and Injures or Has the Potential To Injure Any Resources of 
the Sanctuary, With Exceptions
    These activities are prohibited unless conducted pursuant to a 
sanctuary permit. This prohibition is consistent with regulated 
activities identified in Presidential Proclamation 8031 for PMNM. The 
sanctuary regulations provide an exception to this activity, for 
``discharge incidental to vessel operations such as approved marine 
sanitation device effluent, cooling water, and engine exhaust''. Within 
Special Preservation Areas or the Midway Atoll Special Management Area, 
discharge is limited to ``vessel engine cooling water, weather deck 
runoff, and vessel engine exhaust''. The exceptions to this otherwise 
regulated activity must be conducted in accordance with other Federal 
statutes and regulations, such as section 312 of the Federal Water 
Pollution Control Act, as amended, (FWPCA), 33 U.S.C. 1321 et seq. In 
addition, and consistent with exceptions identified in Presidential 
Proclamation 8031 for PMNM, the sanctuary regulations provide an 
exception for ``fish, fish parts, or chumming materials (bait) used in 
or resulting from lawful fishing activity, provided that such discharge 
or deposit is during the conduct of lawful fishing activity within the 
sanctuary''.
    While this prohibition is technically new for the area of the 
sanctuary that overlaps with the MEA, Presidential Proclamation 9478 
effectively includes this activity. Regulating this activity for the 
Outer Sanctuary Zone provides clarity to the public and resource 
managers. Further, the prohibition on discharges within or into the 
sanctuary is provided in recognition that various substances can be 
discharged from vessels or from infrastructure or individuals along the 
shoreline that can harm sanctuary resources or qualities. Establishing 
a cohesive regulatory framework across the sanctuary would benefit 
sanctuary resources and sanctuary users.
16. Prohibition on Anchoring a Vessel
    This activity is prohibited unless conducted pursuant to a 
sanctuary permit. While this activity may be permitted via a sanctuary 
permit, anchoring on living or dead coral may never be permitted, as 
noted above under prohibition 5. NOAA is regulating anchoring a vessel 
for consistency with a regulated activity identified in Presidential 
Proclamation 8031 for PMNM and because there is the potential for 
sanctuary resources, other than corals, to be impacted by anchoring. 
This prohibition is new for the area of the sanctuary that overlaps 
with the MEA. NOAA is including this prohibition on anchoring a vessel 
throughout the sanctuary to provide clarity to the public, resource 
managers, and enforcement personnel that all users of the sanctuary are 
subject to the same prohibition on anchoring a vessel unless conducted 
pursuant to a sanctuary permit.

H. Exemptions for Emergencies

    Consistent with existing management of this area, the prohibitions 
for the sanctuary would not apply to any activity necessary to respond 
to emergencies that threaten life, property, or the environment, or to 
activities necessary for law enforcement purposes.

I. U.S. Armed Forces Exemption

    Consistent with existing management of this area, NOAA provides a 
broad exemption to allow activities and exercises of the U.S. Armed 
Forces, including those carried out by the U.S. Coast Guard. NOAA 
recognizes that this broad exemption is necessary to ensure military 
readiness for the Department of Defense to conduct existing training, 
operations, and military readiness activities in the area of the 
sanctuary. The United States military has been able to maintain 
readiness and conduct training and other operations in other national 
marine sanctuaries based on similar broad exemptions.
    All activities and exercises of the Armed Forces shall be carried 
out in a

[[Page 4868]]

manner that avoids, to the extent practicable and consistent with 
operational requirements, adverse impacts on sanctuary resources and 
qualities. For any actions of the Armed Forces that are likely to 
destroy, cause the loss of, or injure sanctuary resources, the Armed 
Forces must comply with the Interagency Cooperation requirements 
outlined in section 304(d) of the NMSA, regardless of whether those 
actions are exempted from the sanctuary's prohibitions.

J. Exemption for Non-Commercial Fishing

    NOAA exempts non-commercial fishing authorized under the MSA in the 
Outer Sanctuary Zone from needing a sanctuary permit for certain 
regulated activities provided under paragraph (a)(9) through (12), and 
(a)(14) in the final rule, provided that certain requirements are 
satisfied. Those requirements are that the fish harvested, either in 
whole or in part: (1) are not intended to enter commerce and shall not 
enter commerce through sale, barter, or trade, and that the resource is 
managed sustainably; and (2) are not intended to be sold and shall not 
be sold for any purposes, including, but not limited to, cost-recovery.
    In addition, the exempted activities under paragraph (a)(9) through 
(12), and (a)(14) must only be conducted as incidental to and necessary 
to conduct lawful non-commercial fishing activity. NOAA will prepare a 
separate proposed rule under the MSA, which shall serve as the primary 
mechanism for authorizing non-commercial fishing activities in the 
Outer Sanctuary Zone. NOAA will periodically evaluate the effect of 
non-commercial fishing activities on sanctuary resources. Such 
evaluations would take into consideration the best scientific 
information available and evaluate whether additional actions are 
necessary for the proper care and management of sanctuary resources, 
including fishery resources, consistent with goals and objectives of 
the sanctuary. This exemption only applies to the Outer Sanctuary Zone.

K. Sanctuary Permit Procedures and Criteria

1. Sanctuary General Permits
    NOAA provides the authority to issue sanctuary general permits to 
allow certain activities that would otherwise violate prohibitions in 
paragraphs (a)(9) through (15). The sanctuary permitting system was 
developed to allow for integration with the Monument permitting system, 
to ensure a continued joint permitting system administered by Monument 
co-managers. NOAA may, in cooperation with the Monument co-trustees, 
modify the existing memorandum of agreement or develop a new memorandum 
of agreement to add further clarification on joint permitting.
    National marine sanctuary program-wide regulations at 15 CFR 922.30 
describe various purposes for which a sanctuary general permit can be 
issued. Three of these which would apply to this sanctuary are:
     Research--activities that constitute scientific research 
or scientific monitoring of a national marine sanctuary resource or 
quality;
     Education--activities that enhance public awareness, 
understanding, or appreciation of a national marine sanctuary or 
national marine sanctuary resource or quality; and
     Management--activities that assist in managing a national 
marine sanctuary.
    NOAA adds two additional permit categories to 15 CFR 922.30 under 
which a sanctuary general permit could be issued in the sanctuary:
     Native Hawaiian Practices--activities that allow for 
Native Hawaiian practices within the sanctuary; and
     Recreation--recreational activities within the sanctuary, 
but limited to the Midway Atoll Special Management Area.
    The Native Hawaiian Practices general permit category is consistent 
with the types of activities permitted for the PMNM. Presidential 
Proclamation 9478 provided Native Hawaiian practices as a regulated 
activity. For consistency in management across the proposed sanctuary, 
and to protect sanctuary resources while facilitating responsible user 
access, NOAA would apply this general permit category across the 
sanctuary.
    The Recreation general permit category is consistent with the types 
of activities permitted for PMNM, specifically within the Midway Atoll 
Special Management Area. For consistency with existing Monument 
management, this general permit category would continue to be limited 
to recreational activities within the Midway Atoll Special Management 
Area.
    The general regulations in 15 CFR part 922, subpart D relating to 
the permit application process, review procedures, amendments, and 
other permitting stipulations would apply. These national permitting 
regulations include a list of factors NOAA considers in deciding 
whether or not to issue the permit, such as whether the activity must 
be conducted within the sanctuary, and whether the activity will be 
compatible with the primary objective of protection of sanctuary 
resources and qualities. NOAA will be able to impose specific terms and 
conditions through a permit as appropriate. The general regulations' 
permitting review criteria is largely consistent with the permitting 
findings established by Presidential Proclamation 8031 for PMNM, and 
implemented through 50 CFR 404.11.
    In addition to permit review procedures and evaluation criteria in 
15 CFR 922.33, some additional permit review criteria apply in the 
sanctuary, including additional criteria specific to Native Hawaiian 
Practices permits and Recreation permits. NOAA is providing these 
additional permit criteria in 15 CFR 922.245 to be consistent with the 
permit criteria for PMNM.
2. Special Use Permits
    NOAA has the authority to issue special use permits (SUPs) in 
national marine sanctuaries, as established by section 310 of the NMSA 
(16 U.S.C. 1441) and by 15 CFR 922 subpart D. SUPs can be used to 
authorize specific activities in a sanctuary if such authorization is 
necessary to establish conditions of access to, and use of, any 
sanctuary resource or to promote public use and understanding of a 
sanctuary resource. Section 310 of the NMSA establishes four 
requirements for SUPs: (1) activities must be compatible with the 
purposes for which the sanctuary is designated and with protection of 
sanctuary resources; (2) SUPs shall not authorize the conduct of any 
activity for a period of more than five years unless otherwise renewed; 
(3) activities carried out under the SUP must be conducted in a manner 
that does not destroy, cause the loss of, or injure sanctuary 
resources; and (4) permittees are required to purchase and maintain 
comprehensive general liability insurance, or post an equivalent bond, 
against claims arising out of activities conducted under the SUP and to 
agree to hold the United States harmless against such claims. The NMSA 
authorizes NOAA to assess and collect fees for the conduct of any 
activity under a SUP, including costs incurred, or expected to be 
incurred, in issuing the permit and the fair market value use of 
sanctuary resources. Implementing regulations at 15 CFR 922.35 provide 
additional detail on assessment of fees for SUPs. Like with sanctuary 
general permits, NOAA can place conditions on SUPs specific to the 
activity being permitted. NOAA shall provide appropriate public notice 
before

[[Page 4869]]

identifying any category of activity subject to a special use permit.
    NOAA is not adding any new SUP category as part of this 
designation. In evaluating applications for special use permits, NOAA 
will consider all applicable permitting requirements, including 
permitting procedures and criteria under the Monument's existing 
management framework. For example, certain activities may be subject to 
the requirements of special ocean use permits, as authorized by 
Presidential Proclamation 8031, and issued by Monument managers in the 
PMNM via 50 CFR 404.11. Special ocean use permit requirements were 
modeled after the NMSA's authority for SUPs, but also include a few 
additional requirements. For example, one of the requirements for 
special use permits outside Midway Atoll National Wildlife Refuge is 
that the activity does not involve the use of a commercial passenger 
vessel. For special use permits in Midway Atoll National Wildlife 
Refuge, an additional requirement is that the Director of the USFWS or 
their designee determines that the activity is compatible with the 
purposes for which the Midway Atoll National Wildlife Refuge was 
designated.
3. Sustenance Fishing
    NOAA may authorize sustenance fishing outside of any Special 
Preservation Area as a term or condition of any sanctuary permit. 
Sustenance fishing in the Midway Atoll Special Management Area shall 
not be allowed unless the activity has been determined by the Director 
of the USFWS or their designee to be compatible with the purposes for 
which the Midway Atoll National Wildlife Refuge was established. 
Sustenance fishing is fishing for bottomfish or pelagic species in 
which all catch is consumed within the sanctuary. Sustenance Fishing is 
allowed incidental to an activity permitted in the PMNM under 
Presidential Proclamation 8031, and in regulations at 50 CFR part 404. 
Sustenance fishing was not specifically identified in Presidential 
Proclamation 9478 governing the MEA, but is allowable, consistent with 
proper care and management of monument objects. For consistency in 
management and permitting, NOAA is allowing for this activity as a term 
or condition of a general permit or special use permit.

L. Vessel Monitoring System

    To complement existing management and provide consistency across 
the entirety of the sanctuary, an owner or operator of a vessel that 
has been issued a general permit or special use permit under 15 CFR 
part 922 subpart D must ensure that such vessel has a NOAA Office of 
Law Enforcement (OLE)--approved Vessel Monitoring System (VMS) on board 
when operating within the sanctuary. Presidential Proclamation 8031 
requires an owner or operator of a vessel that has been issued a permit 
for accessing the PMNM to have an OLE--approved VMS on board. Such a 
requirement was not included in Presidential Proclamation 9478. For 
consistency in permitting, and for the reasons identified below, NOAA 
implements this requirement across the sanctuary.
    This requirement supports monitoring and surveillance, enforcement, 
and other incidental uses, consistent with the long-standing history of 
using vessel monitoring systems in the remote and vast area of the 
sanctuary, beginning with Executive Order 13178 in 2000. In directing 
the Secretary of Commerce to manage the Northwestern Hawaiian Islands 
Coral Reef Ecosystem Reserve, section 5(b) of Executive Order 13178, 
indicated that priority management issues and actions must include 
enforcement and surveillance, including the use of new technologies, as 
well as the use of vessel monitoring systems, if warranted. The 2005 
Final Reserve Operations Plan included an Enforcement Action Plan with 
strategies to investigate innovative technology that would be effective 
for enforcement and surveillance activities within this large, remote 
area, as well as to implement VMS.
    In 2006, Presidential Proclamation 8031, as noted above, required 
an OLE-approved VMS on vessels with permits to access the PMNM. VMS is 
currently being used in the PMNM and is part of the Monument Management 
Plan's Enforcement Action Plan. The Monument Management Plan 
highlights, as an example, that when the 85-foot longliner Swordman I, 
carrying more than 6,000 gallons of diesel fuel and hydraulic oil, ran 
aground at Pearl and Hermes Reef in 2000, vessel monitoring system 
technology allowed agents to track the disaster and quickly send out 
equipment for an extensive cleanup. Further, the Monument Management 
Plan recognizes that the Monument's remote location presents unique 
surveillance and enforcement challenges, which a mandatory vessel 
monitoring system is critical to addressing.
    In designating a sanctuary in the remote and vast area of the 
Monument and Northwestern Hawaiian Islands Coral Reef Ecosystem 
Reserve, NOAA recognizes the need to overcome these natural barriers to 
surveillance and enforcement through the use of VMS.

M. Scientific Exploration and Research by the Department of Commerce 
and the Department of the Interior

    Presidential Proclamation 9478, which designated the MEA, 
stipulates that the prohibitions required by the proclamation ``shall 
not restrict scientific exploration or research activities by or for 
the Secretaries and nothing in this proclamation shall be construed to 
require a permit or other authorization from the other Secretary for 
their respective scientific activities.'' Presidential Proclamation 
9478 further highlights the significant scientific value of the MEA and 
underscores the opportunities for research and discovery to occur in 
that area, including understanding the impacts of climate change on 
deep-sea communities and identifying new species. NOAA exempts the 
Department of Commerce's and Department of the Interior's scientific 
exploration or research activities from the sanctuary's prohibitions 
and permitting requirements within the Outer Sanctuary Zone to be 
consistent with Presidential Proclamation 9478. However, such 
activities must still comply with other Federal laws such as the NEPA, 
the Endangered Species Act, the National Marine Sanctuaries Act section 
304(d), and the Marine Mammal Protection Act.

N. Sunken Military Craft

    NOAA is also adding language regarding the Sunken Military Craft 
Act of 2004 (SMCA; Pub. L. 108-375, Title XIV, sections 1401 to 1408; 
10 U.S.C. 113 note) that acknowledges that sunken military craft in the 
sanctuary will continue to be administered by the respective Secretary 
concerned pursuant to the SMCA. NOAA will enter into a Memorandum of 
Agreement with the appropriate agencies regarding collaboration on 
implementing the SMCA. See section VI.H for more information.

O. Emergency Regulations

    NOAA is not including any sanctuary-specific regulation to allow 
for development of emergency regulations to address urgent threats to 
sanctuary resources. Rather, the emergency regulation provision 
included in the regulations of general applicability, which apply to 
all national marine sanctuaries (see 15 CFR 922.7), would also apply to 
Papah[amacr]naumoku[amacr]kea National Marine Sanctuary. Emergency 
regulations are used when there is an imminent risk to sanctuary 
resources and a temporary regulation or

[[Page 4870]]

prohibition is necessary to prevent or minimize the destruction or loss 
of those resources, or otherwise minimize the imminent risk of such 
destruction, loss, or injury.

P. Other Conforming Amendments

    The regulations related to National Marine Sanctuary Permitting, 15 
CFR part 922, subpart D, are amended so that the regulations are 
accurate and up-to-date. The modified sections to conform to adding a 
new sanctuary are as follows:
     Section 922.30 National Marine Sanctuary general permits;
     Section 922.33 Review procedures and evaluation; and
     Section 922.37 Appeals of permitting decisions.
    Notably, NOAA amends 15 CFR 922.37 ``Appeals of permitting 
decisions,'' to reflect that the general appeals process for sanctuary 
permits will not apply to permit applications for the sanctuary. 
Consistent with the current interagency permitting system that has been 
in place for the Monument, there would be no appeals process for the 
sanctuary. Should a permit applicant want NOAA and the other agencies 
to reconsider a permitting decision, they would need to file a new 
permit application.

V. Response to Comments

    All comments were considered by NOAA and the State and, where 
appropriate, modifications were made to the final EIS, sanctuary 
management plan, and sanctuary rule. NOAA and the State's responses to 
comments address significant issues and concerns raised by members of 
the public, government agencies, stakeholder groups, non-profit 
organizations, and K[amacr]naka [revaps][Omacr]iwi community groups. 
For a full scope of all of the comments received on the draft 
designation documents, including the draft EIS and the draft management 
plan, and their responses, please review the final EIS Appendix K. This 
final rule includes NOAA's responses to comments that address the 
significant issues raised in public comments within the scope of the 
proposed rule specifically, and offer additional information about why 
certain changes were made to the rule, the terms of designation, or the 
regulations. The final rule retains the numbering/naming of the comment 
from the final EIS Appendix K so readers can track the comments that 
have been included in this preamble and more efficiently find other 
related comments/responses in the Appendix K that have not been 
included in this preamble. As such, cross-references have been retained 
here for completeness.
    1. A-1 Comment: The majority of comments NOAA received supported 
the proposed sanctuary designation, including Alternative 1 (NOAA's 
Preferred Alternative), and encouraged NOAA to proceed with the 
designation process. Commenters who support the designation cited 
reasons including:
     Additional regulations, protections, enforcement, and 
programmatic and legal benefits for Papah[amacr]naumoku[amacr]kea under 
the National Marine Sanctuaries Act;
     Enhancing long-term protections for biological, cultural, 
and historical resources;
     Comprehensive and coordinated management of the marine 
areas of Papah[amacr]naumoku[amacr]kea;
     Preserving Native Hawaiian culture, traditional practices, 
sacredness of waters, and connections to place for current and future 
generations;
     Safeguarding marine biodiversity; coral reefs, pelagic, 
and deep-ocean ecosystems; and endemic, threatened, and endangered 
species;
     Regulating, mitigating, or preventing threats such as 
invasive species, overfishing, illegal fishing, deep-sea mining, 
military activities, pollution, oil spills, marine debris, erosion, and 
climate change;
     Additional sources of funding to support operations, 
research, emergency response, citizen science, education, and outreach; 
and
     Opportunities for recreation and tourism;
    Response: NOAA agrees that these are some of the main benefits of 
designating the marine areas of the Monument as a national marine 
sanctuary. NOAA notes that many of these comments specifically indicate 
a preference for Alternative 1, and NOAA has considered this in 
carrying Alternative 1 forward in the final EIS as the Final Agency-
Preferred Alternative.
    2. A-2 Comment: A minority of commenters expressed opposition to 
sanctuary designation, citing concerns that designating a sanctuary:
     Is an overreach by the Federal government;
     Is an act of colonialism and/or infringes on the rights of 
Indigenous peoples;
     Would come at a cost to Native Hawaiian, American Samoan, 
and/or Pacific Islander well-being, including loss of the ability to 
practice cultural traditions and connections to ocean resources;
     Would limit access to the ocean and resources for food, 
livelihood, and cultural sustenance, and limit Indigenous rights and 
their ability to freely fish in local waters;
     Would decrease the amount of fishing waters across the 
Pacific;
     Would lead to overfishing;
     Adds unnecessary layers of bureaucracy, as the existing 
Monument management and protections are extensive and sufficient for 
the area, and that if new protections/management is needed, these 
should be enacted through the Monument;
     Would relinquish the Monument title and co-management 
framework;
     Would weaken current protections, and allow the Department 
of Commerce to violate protections, opening the doors to deep-sea 
mining and recreational tourism, and taking away human and financial 
resources needed to manage the area; and
     Would be redundant of current management of the Monument, 
and therefore unnecessary. Some commenters also expressed that they 
felt current Monument management to be poor, or that current management 
capacity is lacking; and that a sanctuary would not improve this.
    Response: Through the public sanctuary designation process, and 
from public input received during scoping and the proposed designation 
stage, NOAA has determined that this action responds to the need to 
address threats to and discrepancies in management of nationally 
significant resources. NOAA has also determined that the current 
management regime will benefit from additional regulatory tools, as 
well as the first set of implementing regulations for the MEA. Chapter 
2 of the final EIS and Section I.B of the final rule preamble describes 
the purpose and need for the sanctuary.
    NOAA respects the views of the commenters, including those who 
expressed concern that sanctuary designation is an overreach by the 
Federal government; is an act of colonialism; would impact the 
livelihood of Pacific Islanders and/or limit Indigenous rights. NOAA 
seeks to support the rights of K[amacr]naka [revaps][Omacr]iwi and 
Pacific Islanders, and to support biocultural conservation and 
restoration work by growing collective kuleana and affirming respect 
and reciprocity for the place and people. The sanctuary management plan 
(final EIS Appendix A) objectives include managing the area as a sacred 
site consistent with K[amacr]naka [revaps][Omacr]iwi traditional 
knowledge, management concepts, and principles articulated within Mai 
Ka P[omacr] Mai. K[amacr]naka [revaps][Omacr]iwi culture is 
foundational in the co-management legacy of 
Papah[amacr]naumoku[amacr]kea (see final EIS, sections 1.2.4 and 
4.5.1), and the

[[Page 4871]]

designation aims to ensure ecological integrity and achieve strong, 
long-term protection and perpetuation of Northwestern Hawaiian Island 
ecosystems, K[amacr]naka [revaps][Omacr]iwi culture, and maritime 
heritage resources for current and future generations. Native Hawaiian 
access will continue under sanctuary designation. See also the 
responses to comments C.1, C.2, and E.7.
    Regarding commenters who expressed concerns with the impact of 
sanctuary designation on the existing Monument, existing regulations, 
and or existing management of the area, see also the responses to E.1 
and E.2. Regarding commenters who expressed concerns with the impact of 
sanctuary designation on fishing, see also the comments D.1, D.3, and 
D.5. NOAA also recognizes that some comments raise concerns that are 
outside the scope of this designation, including the ongoing process to 
designate a proposed national marine sanctuary in the Pacific Remote 
Islands. The underlying concerns of these comments were still 
considered in the context of Papah[amacr]naumoku[amacr]kea National 
Marine Sanctuary. Detailed responses to specific points of concern and 
opposition are addressed in the subsequent responses.
    3. B-1 Comment: Commenters expressed opposition to for-profit 
activities in the sanctuary. One commenter recommended that no human 
activity should be allowed in the sanctuary.
    Response: The sanctuary regulations were drafted to supplement and 
complement existing management of the area. The existing Monument 
management regime allows for some for-profit activities such as 
professional film-making, and activities such as wildlife management, 
research, and Native Hawaiian practices. All are subject to permitting 
requirements. Consistent with the existing management of the area, NOAA 
will allow for regulated access to the sanctuary for these types of 
activities. As in the Monument, in order to receive a permit for a 
regulated activity, a number of findings criteria need to be met, 
including that the proposed activity is conducted consistent with the 
primary objective of protection of sanctuary resources.
    4. B-2 Comment: Commenters expressed concern regarding access to 
Papah[amacr]naumoku[amacr]kea, noting that the area can currently only 
be experienced by a select group of scientists, Native Hawaiian 
cultural practitioners, and wealthy individuals.
    Response: The sanctuary regulations and permit categories were 
drafted to supplement and complement existing management of the area. 
Consistent with the presidential proclamations designating the PMNM and 
MEA, and the Monument implementing regulations at 50 CFR part 404, NOAA 
will allow for regulated access. Anyone may apply for a permit to 
access the sanctuary. There are six categories of permitted activities: 
research, recreation, education, Native Hawaiian practices, 
conservation and management, and special use. In addition, a vessel may 
pass without interruption through the sanctuary without requiring a 
permit as long as the vessel does not stop or engage in prohibited 
activities within the sanctuary.
    Additionally, the sanctuary management plan describes strategies to 
engage and support diverse communities who care for 
Papah[amacr]naumoku[amacr]kea, including Indigenous and underserved 
communities. NOAA recognizes the constraints imposed by the vastness 
and remote nature of the proposed sanctuary (nearly 300 miles at its 
closest point from the main Hawaiian Islands), and therefore strives to 
provide education and outreach that brings the place to the people. 
Through the Mokup[amacr]papa Discovery Center and collaborations with 
other interpretive centers, organizations, business agencies, and 
others, NOAA has expanded a network serving both local, regional, and 
international audiences.
    5. B-3 Comment: Commenters provided recommendations that permits be 
easy to acquire through a streamlined process to minimize barriers and 
reduce redundant reviews under various authorities and regulations. One 
commenter suggested that the process to acquire a sanctuary or Monument 
Native Hawaiian practices permit, specifically, should be prioritized 
and streamlined.
    Response: The Monument joint permitting process has been in place 
and permits have been issued by the co-trustees since 2007. The 
sanctuary includes a permitting system modeled after the existing 
Monument permitting system, and was developed to allow for integration 
with the Monument permitting system, to ensure continued joint 
permitting administered by Monument co-trustees. See final EIS Section 
3.3.1 for an updated description of the permitting process. Through 
sanctuary designation, NOAA strives to conduct seamless, integrated 
management, such that sanctuary permits, including Native Hawaiian 
practices permits, will go through the same streamlined process as 
currently exists for the Monument.
    6. B-4 Comment: Commenters expressed concerns regarding activities 
that take place in the Northwestern Hawaiian Islands under claims of 
innocent passage, and requested that all activities in the area of the 
proposed sanctuary comply with the United Nations Convention on the Law 
of the Sea, which the U.S. recognizes as customary international law, 
and applicable international treaties.
    Response: In the preamble of the proposed rule, NOAA specified that 
the proposed access and ship reporting regulations would be applied in 
accordance with generally recognized principles of international law, 
in accordance with sections 305(a) and 307(k) of the NMSA and the NMSA 
Regulations of General Applicability at 15 CFR 922.1(b). That is, no 
regulation shall apply to or be enforced against a person who is not a 
citizen, national, or resident alien of the United States unless in 
accordance with generally recognized principles of international law. 
In accordance with 15 CFR 922.1(b), NOAA has long interpreted the text 
of NMSA Section 305(a) as encompassing international law, including 
customary international law.
    In the preamble of this final rule, NOAA has clarified its 
intention that all regulations will be applied in accordance with 
generally recognized principles of international law, as well as in 
accordance with treaties, conventions, and other agreements to which 
the United States is a party.
    7. B-5 Comment: A commenter provided a recommendation that the 
IMO's designation of the Monument as a PSSA apply to the MEA. The 
commenter also recommended that NOAA should determine, as part of the 
sanctuary designation process, if additional regulatory and management 
controls are necessary.
    Response: The IMO process for designating an area as a PSSA is 
outside the scope of this action. If the U.S. Government determines at 
a future time that designation of some or all of the Monument as a PSSA 
is warranted, the IMO process would remain available. Through sanctuary 
designation, NOAA will implement the ship reporting system (CORAL 
SHIPREP), which was adopted by the IMO as an associated protective 
measure to the designation of the Monument as a PSSA. The ship 
reporting system's reporting area extends outward 10 nautical miles 
from the PSSA boundary, as designated by the IMO, and therefore 
includes some portions of the MEA waters. After thorough analysis, NOAA 
concluded that additional regulatory measures are not necessary at this 
time, beyond the

[[Page 4872]]

sanctuary regulations for ship reporting, access, and prohibited or 
otherwise regulated activities. Section IV.F of this final rule 
preamble provides details of the ship reporting system.
    8. B-6 Comment: Commenters expressed support for access for 
recreational activities, including snorkeling and scuba diving; and 
allowing opportunities for the public to interact with 
Papah[amacr]naumoku[amacr]kea in a safe and responsible manner. 
Commenters stated that allowing access for recreational activities may 
lead to increased awareness and support for the National Marine 
Sanctuary System. Commenters also provided recommendations for 
regulating recreational activities.
    Other commenters expressed concern for the potential negative 
impacts to resources from allowing visitation, recreation, and tourism 
activities in the sanctuary, specifically Midway Atoll. A few 
commenters opposed recreational access to the sanctuary, noting that 
access should be limited to research and conservation activities and/or 
to the Midway Atoll Special Management Area.
    Response: For the sanctuary, consistent with existing regulations 
for PMNM, recreational activity will be defined as activities conducted 
for personal enjoyment that do not result in the extraction of 
sanctuary resources and that do not involve a fee-for-service 
transaction. This includes, but is not limited to, wildlife viewing, 
scuba diving, snorkeling, and boating. Recreation can provide 
significant educational opportunities, build constituencies, and 
provide assistance to natural resource managers. However, these 
activities can also lead to wildlife disturbance, habitat degradation, 
and pollution. It is a goal of the Monument to prevent, avoid, or 
minimize negative human impacts associated with recreation by allowing 
access only for those activities that do not threaten the natural 
character or biological integrity of the Monument or Native Hawaiian 
cultural, historic, or maritime heritage resources.
    Midway Atoll Special Management Area is the only area of the 
Monument where recreational activities are permitted. Thus, while the 
sanctuary will allow for recreational activities via a permit, permits 
will only be issued for the Midway Atoll Special Management Area within 
the sanctuary, in coordination with the Monument Management Board and 
consistent with permitting for the existing Monument. Consistent with 
permit criteria for recreational activities within the Monument, 
recreation permits will not be issued for activities associated with 
any for-hire operation or for activities that involve extractive use.
    9. B-7 Comment: Commenters expressed support for allowing a fee-
for-service transaction for public visitation and recreational 
activities at Midway Atoll National Wildlife Refuge, and pointed out 
the existing authority of the USFWS to charge fees for public 
visitation. Commenters requested that the EIS recognize the authority 
of the USFWS to charge fees for services.
    Response: Consistent with existing permit criteria and regulations 
for recreational activities within the Monument, recreation permits 
will not be issued for activities associated with any for-hire 
operation, and recreational activities are defined as activities 
conducted for personal enjoyment that do not result in the extraction 
of sanctuary resources and that do not involve a fee-for-service 
transaction. However, NOAA acknowledges that the USFWS has the 
authority to charge fees for services including public visitation (50 
CFR part 25 Subpart E; Refuge Rules and Policies). Sanctuary 
designation will not change this authority, and the USFWS will still be 
able to charge fees for services, including public visitation to Midway 
Atoll. See also the response to E.3.
    The EIS has been revised to acknowledge that the USFWS has the 
authority to charge fees for services including public visitation. See 
sections 3.2 and 4.6.2 of the final EIS.
    10. B-8 Comment: Commenters requested that the USFWS consider a 
visitation program at Midway Atoll; and/or expressed support for 
recreation and visitation to Midway Atoll. Comments also requested that 
the final EIS describe the sanctuary permit process for public 
visitation and recreational activities at Midway Atoll National 
Wildlife Refuge.
    Response: A visitation program to Midway Atoll is outside the scope 
of this action. NOAA will share these comments with the USFWS, a 
cooperating agency for this action, who has operated a Visitor Services 
Program for Midway Atoll. The USFWS' Midway Atoll Comprehensive Master 
Plan (2022) affirms the goals, objectives, and strategies of the 
previous 2008 Midway Atoll Visitor Services Plan, and USFWS' intent to 
implement a Visitor Services Program.
    11. B-9 Comment: A commenter suggested that standards for 
permitting should be strengthened significantly, prioritizing Native 
Hawaiian practices without opening the door to other types of 
activities.
    Response: Consistent with the presidential proclamations 
designating PMNM and the MEA, and PMNM implementing regulations at 50 
CFR part 404, NOAA will allow for regulated access to the sanctuary. 
The sanctuary regulations include a permitting system modeled after the 
existing Monument permitting system, which was developed to allow for 
integration with the Monument permitting system to ensure continued 
joint permitting administered by the Monument Management Board (MMB). 
The final rule adopts the same permit criteria as currently required 
for Monument permits, including the additional criteria for Native 
Hawaiian practices and recreation permits. For additional information 
regarding Native Hawaiian practices permitting, see the responses to 
B.14 and C.1.
    12. B-10 Comment: Commenters recommended that NOAA hold mandatory 
public hearings for all permit applications, that there should be a 
permanent public record for all permits granted, and that there should 
be no multiple-year permits allowed.
    Response: The sanctuary regulations include a permitting system 
modeled after the existing Monument permitting system, and was 
developed to allow for integration with the Monument permitting system 
to ensure continued joint permitting administered by MMB. Therefore, 
NOAA intends to continue with the existing public notification process 
for the Monument, which does not include mandatory public hearings for 
all permit applicants. Instead, the existing permit system for the 
Monument includes a Permit Application Unified Public Notification 
Policy to engage and inform the public of activities proposed to occur 
within the Monument. Posting of a permit application does not equate to 
permit approval. After posting, each application is thoroughly reviewed 
by the MMB. Final permitted activities may differ from the proposed 
activities. Some of the public notification practices for the existing 
Monument include:
     Within 10 calendar days of receipt of an application, a 
summary of an applicant's proposed activities is posted for public 
viewing.
     Within 40 calendar days of receipt of an application, a 
full permit application is posted for public viewing.
     Permit applications that include proposed activities 
within the Northwestern Hawaiian Islands State Marine Refuge are also 
posted to the Board of Land and Natural Resources (BLNR) website for 
seven days prior to the scheduled BLNR meeting as part of the overall 
BLNR submittal process. The

[[Page 4873]]

BLNR hearings and review process are open to the public.
    All information provided in the application is reviewed by the 
Monument co-trustees to evaluate the potential benefits of the 
activity, determine whether the proposed methods will achieve the 
proposed results, evaluate any possible detrimental environmental 
impacts, and determine if issuance of a permit is appropriate. Factored 
in is a consideration of whether the timeframe of the proposed action 
is appropriate. Actions occurring within State waters are subject to a 
maximum permit duration of one year, while multi-year permits may only 
be issued outside of State waters. Therefore, consistent with existing 
management, multi-year permits may be granted in areas of the sanctuary 
that do not overlap with state waters.
    Additionally, permits granted are documented within an annual 
permitted activities report, published by the Monument. Reports for 
previous years may be viewed on the Permitted Activities Annual Reports 
website.
    13. B-11 Comment: Commenters recommended that independent 
cumulative impact assessments be required for all permit applications.
    Response: Permit decisions are Federal actions which are subject to 
NEPA, 42 U.S.C. 4321 et seq. In accordance with NEPA, NOAA considers 
possible cumulative environmental impacts when considering Federal 
actions, including a decision of whether to issue a permit.
    14. B-12 Comment: Commenters expressed concern that a special use 
permit would introduce commercial activities.
    Response: In the Monument, some forms of commercial activity are 
currently permitted under special ocean use permits. The existing 
regulations at 50 CFR 404 for PMNM include permit criteria and 
regulations for special ocean use, which means an activity or use of 
the Monument that is engaged in to generate revenue or profits for one 
or more of the persons associated with the activity or use, and does 
not destroy, cause the loss of, or injure Monument resources. This 
includes ocean-based ecotourism and other activities such as 
educational and research activities that are engaged in to generate 
revenue, but does not include commercial fishing.
    Likewise, before issuing a SUP in the sanctuary, NOAA will also 
ensure, among other things, that the requested activity is compatible 
with the purposes for which the sanctuary is designated and with 
protection of sanctuary resources, and is conducted in a manner that 
does not destroy, cause the loss of, or injure sanctuary resources (16 
U.S.C. 1441(c)). NOAA can place conditions on SUPs specific to the 
activity being permitted. Individual permit applications that would 
require a SUP are also reviewed with respect to all other pertinent 
regulations and statutes, including NEPA (42 U.S.C. 4321 et seq.), and 
any required consultations, permits, or authorizations. Accordingly, 
there are sufficient safeguards in place for any activity proposed for 
a SUP in the sanctuary, whether of a commercial or non-commercial 
nature.
    In addition, NOAA is not proposing any new SUP categories as part 
of this designation. In order to do so, NOAA would be required to 
provide appropriate public notice before identifying a new category of 
activity subject to a SUP (16 U.S.C. 1441(b)).
    15. B-13 Comment: Commenters asked why the sanctuary permit would 
not allow for appeals of permit decisions.
    Response: The permitting system for the sanctuary is modeled after 
the existing Monument permitting system. The permitting system would 
not supplant the joint permitting system for the Monument, and was 
developed to ensure a continued joint permitting system administered by 
the MMB. The existing permit system for the Monument does not include a 
process to appeal a permit decision. Instead, a permit applicant may 
seek reconsideration of a permitting decision by filing a new permit 
application that redresses the issue(s) in the initial application that 
caused the denial. To ensure consistency with the existing permit 
system for the Monument, the National Marine Sanctuary Program 
regulations at 15 CFR 922.37 for appeals of permitting decisions will 
not apply to Papah[amacr]naumoku[amacr]kea National Marine Sanctuary. 
This will ensure that permit decisions are not made solely by NOAA, but 
in consideration with the other Monument co-trustees. See the final 
EIS, Section 3.3.1 and Section IV.P of this final rule for discussion 
of appeals of permitting decisions.
    16. B-14 Comment: A commenter stated that the proposed rule's 
definition of ``Native Hawaiian Practices'' provides a solid 
foundation, but is concerned that ``Native Hawaiian'' is not defined. 
The commenter requested that the definition should narrowly reference 
indigenous practices and only those practices of the k[amacr]naka 
maoli, who lived and thrived in Hawai[revaps]i prior to European and 
American arrival.
    Response: NOAA will not define ``Native Hawaiian'' in the sanctuary 
regulations because the issuance of Native Hawaiian practices permit is 
based on evaluating the activity against the permit criteria. To be 
consistent with the types of activities permitted for the Monument, and 
allow for an integrated permit process, NOAA will issue Native Hawaiian 
practices permits based on the same permit review procedures and 
additional evaluation criteria as those used for the Monument:
     The activity is non-commercial and will not involve the 
sale of any organism or material collected;
     The purpose and intent of the activity is appropriate and 
deemed necessary by traditional standards in the Native Hawaiian 
culture (pono), and demonstrates an understanding of, and background 
in, the traditional practice and its associated values and protocols;
     The activity benefits the resources of the Northwestern 
Hawaiian Islands and the Native Hawaiian community;
     The activity supports or advances the perpetuation of 
traditional knowledge and ancestral connections of Native Hawaiians to 
the Northwestern Hawaiian Islands; and
     Any living sanctuary resource harvested under this permit 
will be consumed or utilized in the sanctuary.
    The permitting system for the sanctuary is modeled after the 
existing Monument permitting system. The permitting system will not 
supplant the joint permitting system for the Monument, and was 
developed to ensure a continued joint permitting system administered by 
the MMB. The existing permit system for the Monument does not define 
Native Hawaiian, and instead provides a specific set of findings 
criteria for a Native Hawaiian practice permit. The criteria for the 
Monument Native Hawaiian practice permit were developed following a 
workshop in 2004 facilitated by Kia[revaps]i Kai, a graduate program at 
the Kamakak[umacr]okalani Center for Hawaiian Studies at the University 
of Hawai[revaps]i at M[amacr]noa, collecting input from Native Hawaiian 
cultural practitioners, fishermen, and others to create criteria for 
culturally-appropriate activities in Papah[amacr]naumoku[amacr]kea. 
Presidential Proclamation 8031 subsequently applied these criteria in 
providing for additional findings for Native Hawaiian practice permits, 
as did the Monument's implementing regulations at 50 CFR part 404.
    However, while Native Hawaiian is not defined in the regulations, 
the final EIS, recognizes a definition for the term Native Hawaiian per 
existing Federal law as important background information for the 
reader. See also the response to C.8.

[[Page 4874]]

    17. B-15 Comment: Commenters requested that wind turbine activity, 
in addition to mining and exploratory activities related to energy 
development, be prohibited.
    Response: Consistent with the presidential proclamations 
establishing the Monument, NOAA will prohibit exploring for, 
developing, or producing oil, gas, or minerals to protect sanctuary 
resources. NOAA will also prohibit ``any energy development 
activities'' to further the underlying intent of the prohibition on 
oil, gas, and mineral development by accounting for technological 
advances in other forms of energy development. This includes, but is 
not limited to, wind turbines and exploratory mining activity.
    18. B-16 Comment: Commenters requested that submarine activity be 
prohibited, with several comments specifically requesting prohibitions 
on military submarine use.
    Response: Access to the sanctuary, and therefore submarine use 
within the sanctuary, would be prohibited and thus unlawful except 
under the following circumstances: for emergency response actions, law 
enforcement activities, and activities and exercises of the Armed 
Forces; pursuant to a sanctuary permit; when conducting scientific 
exploration or research activities by or for the Secretary of Commerce 
and/or the Secretary of the Interior in the Outer Sanctuary Zone; and 
when passing through the sanctuary without interruption. Further, all 
regulations will be applied in accordance with generally recognized 
principles of international law, as well as in accordance with 
treaties, conventions, and other agreements to which the United States 
is a party. No regulation shall apply to or be enforced against a 
person who is not a citizen, national, or resident alien of the United 
States (including foreign flag vessels) unless in accordance with 
international law, or applicable treaties, conventions, and other 
agreements.
    The sanctuary regulations allow activities and exercises of the 
U.S. Armed Forces. This is consistent with the existing management of 
the Monument, as both Presidential Proclamation 8031 and Presidential 
Proclamation 9478 provided broad exemptions for activities of the U.S. 
Armed Forces. However, all activities and exercises of the Armed Forces 
must be carried out in a manner that avoids, to the extent practicable 
and consistent with operational requirements, adverse impacts on 
sanctuary resources and qualities.
    19. B-17 Comment: Commenters expressed concern regarding the 
potential spread of invasive species and diseases from vessel transit 
and biofouling, and requests that the prohibition on introducing 
invasive species apply to all vessels, including those passing without 
interruption.
    Response: The sanctuary regulations will prohibit introducing or 
otherwise releasing an introduced species from within or into the 
sanctuary. The sanctuary regulations would also prohibit discharging or 
depositing any material or other matter into the sanctuary. These 
prohibitions are consistent with prohibitions identified in the 
presidential proclamations establishing the Monument. These 
prohibitions would apply to all vessels, including those passing 
without interruption. A vessel may only pass without interruption 
through the sanctuary without requiring a permit, as long as the vessel 
does not stop or engage in prohibited activities within the sanctuary.
    20. B-18 Comment: Commenters stated that the provisions of 
Presidential Proclamation 8031, 50 CFR 404, Executive Order 13178 for 
the Northwestern Hawaiian Islands Coral Reef Ecosystem Reserve, and the 
State of Hawai`i Northwestern Islands Marine Refuge should be applied 
to the sanctuary regulations for the Monument Expansion Area and the 
full sanctuary, and specifically the prohibitions regarding fishing. 
Commenters also stated that Presidential Proclamation 9478 is too weak 
and provides ``loopholes.''
    Response: In drafting the sanctuary regulations, NOAA reviewed the 
executive orders, presidential proclamations, and regulations that 
currently guide Monument management. NOAA adopted the management 
measures from these benchmarks, and, in a few areas, added to those 
measures to allow for consistency in regulation and management across 
the sanctuary. The sanctuary regulations are largely consistent with 
Executive Order 13178, establishing the Northwestern Hawaiian Islands 
Coral Reef Ecosystem Reserve (Reserve). Where the sanctuary regulations 
do not align with Executive Order 13178, the regulations comply with 
other applicable law including Presidential Proclamations 8031 and 9478 
establishing PMNM and MEA, respectively, which succeeded the 2000 
executive order establishing the Reserve. For example, while Executive 
Order 13178 sets caps on commercial fishing, the sanctuary regulations 
prohibit commercial fishing across the sanctuary, consistent with the 
presidential proclamations. In addition, the MEA's location outside the 
reserve, and other applicable law for that area such as Presidential 
Proclamation 9478, account for differences in management, including for 
non-commercial fishing.
    NOAA also considered that while the Monument is managed as a unit, 
several State and Federal conservation areas exist within it, where 
specific authorities apply. For example, the State of Hawai[revaps]i 
has primary responsibility for managing the State waters of the 
Monument, including the State of Hawai[revaps]i Northwestern Islands 
Marine Refuge. These existing authorities will still remain in effect. 
The State of Hawai[revaps]i also served as a cooperating agency for the 
EIS, allowing consideration and input into the draft documents. 
Further, as the sanctuary overlaps with State waters, the State will 
co-manage the sanctuary with NOAA, and the governor of Hawai[revaps]i 
will also review NOAA's designation documents before the sanctuary 
designation is final.
    21. B-19 Comment: A commenter expressed support for the prohibition 
on altering the seabed by modification or placement of materials, 
except for scientific instruments, providing new protections for the 
limited and sensitive habitats of the Outer Sanctuary Zone. The 
commenter noted that access through permitting would allow managers to 
review methodologies and monitor permittees, and that while minimal 
user contact with the seafloor occurs or is anticipated in the Outer 
Sanctuary Zone, these resources are rare and extremely vulnerable to 
disturbance.
    Response: NOAA agrees. In the MEA, Presidential Proclamation 9478 
prohibits this type of activity, except for when conducted for the use 
of scientific instruments, which is allowed only with a permit, subject 
to such terms and conditions as the Secretaries of Commerce and 
Interior deem appropriate. Therefore, in the sanctuary, these 
activities are prohibited unless conducted pursuant to a sanctuary 
permit, and in the Outer Sanctuary Zone, such a permit may only be 
issued for scientific instruments.
    22. B-20 Comment: A commenter expressed concern for the prohibition 
on anchoring a vessel, noting that for safety reasons, there are some 
scenarios when a vessel should be able to anchor.
    Response: Anchoring a vessel is prohibited unless conducted 
pursuant to a sanctuary permit. While this activity may be permitted 
via a sanctuary permit, anchoring on living or dead coral may never be 
permitted. NOAA will regulate anchoring a vessel for consistency with a 
regulated activity

[[Page 4875]]

identified in Presidential Proclamation 8031 for PMNM and because there 
is the potential for sanctuary resources, other than corals, to be 
impacted by anchoring. This prohibition is new for the area of the 
sanctuary that overlaps with the MEA. NOAA recognizes that there may be 
scenarios where anchoring a vessel is necessary for safety. Consistent 
with existing management of this area, the prohibitions for the 
sanctuary, including the prohibitions on anchoring, will not apply to 
any activity necessary to respond to emergencies that threaten life, 
property, or the environment, or to activities necessary for law 
enforcement purposes.
    23. B-21 Comment: Commenters expressed concerns regarding the 
sufficiency of enforcement in the sanctuary and the need for improved 
monitoring and enforcement to protect sanctuary resources. Some 
commenters specifically pointed out the need for increased monitoring 
of pollution to prevent entanglement of marine life. Suggestions and 
recommendations included improved or expanded monitoring and 
surveillance, use of technology to aid enforcement including Automatic 
Information Service and satellite monitoring, promulgation of strict 
regulations, dedicated funding, a risk assessment framework for 
vulnerable ecosystems, and increased collaboration with the National 
Environmental Satellite, Data, and Information Service and the State of 
Hawai[revaps]i for satellite management. Commenters also requested that 
enforcement be conducted by traditional vessels or new technologies to 
eliminate noise pollution that may impact marine life.
    Response: With sanctuary designation, the NMSA provides various 
regulatory tools and authorities for the protection of sanctuary 
resources. This includes the authority to conduct enforcement 
activities; assess civil penalties for violations of sanctuary 
regulations or permits; impose liability for destruction, loss of, or 
injury to sanctuary resources and provide natural resource damage 
assessment authorities for destruction, loss of, or injury to any 
sanctuary resource; and issue emergency response regulations. In 
addition, consistent with the existing management of the Monument, the 
sanctuary implements regulations requiring VMS units for an owner or 
operator of a vessel that has been issued a permit, as well as a ship 
reporting system for vessels that pass without interruption through the 
reporting areas. Both regulatory tools are intended to increase 
monitoring, in order to assist enforcement activities by the U.S. Coast 
Guard and NOAA's Office of Law Enforcement and further the protection 
of sanctuary resources. Additionally, as described in the sanctuary 
management plan (final EIS, Appendix A), NOAA will continue to monitor 
ecosystems and seek out and develop new tools and technologies for 
resource protection and monitoring (Strategy 1.2, Strategy 2.2, 
Strategy 2.3); and to work with the existing interagency Law 
Enforcement Coordination Team to enhance communication and coordination 
among enforcement personnel in order to facilitate responses to 
incidents and uphold sanctuary regulations and policies (Strategy 1.9).
    NOAA will continue to actively work and advocate inside the 
ecosystem protection framework established for the Monument to minimize 
risks and damages to sanctuary resources. For example, ongoing research 
aims to identify derelict fishing gear and other marine debris through 
unique spectral signatures that can be visualized from space to record 
locations and provide that information back to partners for removal. 
This technology has the potential to greatly reduce the effort to 
locate these hazards so that they can be removed from the environment. 
Some broad risk assessment investigations have been conducted by the 
Monument co-trustees (e.g., the Papah[amacr]naumoku[amacr]kea Marine 
National Monument Climate Change Vulnerability Analysis (2014)), 
however, much more remains to be done. Challenges include the vast 
geographic extent of ecosystems and seasonal access limitations. 
Conducting such assessments will require substantial time, as well as 
the participation of all Monument co-trustee agencies.
    Regarding reducing noise pollution from vessels to minimize 
wildlife disturbances, uncrewed surface vehicle (USV) technology is 
constantly improving and NOAA is exploring ways to utilize sail drones 
and other vessel systems in order to maintain a physical presence in 
sanctuary waters without having to dedicate staffed assets. These 
uncrewed platforms can utilize satellites to transmit location, vessel 
identification, and photographic evidence back to law enforcement 
officials in order to expand the geographic capacity of their limited 
resources.
    24. B-22 Comment: Commenters recommended harsh penalties for those 
who violate the regulations, including requests for permit violators to 
be banned from receiving future permits.
    Response: The NMSA authorizes NOAA to assess civil penalties for 
violations of provisions of the NMSA, including sanctuary regulations 
and permits. Each violation of the NMSA, any NMSA regulation, or any 
permit issued pursuant thereto, is subject to a civil penalty. Each day 
of a continuing violation constitutes a separate violation. The NMSA 
has a statutory maximum of $216,972 per violation, per the December 27, 
2023 annual adjustment for inflation (see 88 Federal Register 89300).
    Additionally, the NMSA regulations provide a list of findings, in 
addition to site-specific permit review criteria, which must be made 
before issuing a permit, such as whether the activity will be 
compatible with the primary objective of protection of sanctuary 
resources and qualities. The NMSA regulations also provide for the 
denial of a permit application based on various determinations, 
including that the applicant has acted in violation of the terms and 
conditions of a permit in a sanctuary in which the proposed activity is 
to take place, or has acted in violation of any sanctuary regulation, 
or for other good cause.
    25. C-1 Comment: Commenters expressed support for Native Hawaiian 
rights, including statements that access to the sanctuary should be 
allowed for Native Hawaiians to connect with ancestors and 
[revaps][amacr]ina and to perpetuate cultural practices based on pilina 
(relationships), kuleana (responsibilities), and genealogical 
connections to Papah[amacr]naumoku[amacr]kea. This includes voyaging, 
which is vital for health, well-being, and in keeping Hawaiian culture 
and language alive. Commenters also stated that the allowance of Native 
Hawaiian traditional and customary practices should not be diminished 
or limited through sanctuary designation.
    Response: NOAA recognizes the importance of Native Hawaiians' 
access to the sanctuary. Consistent with the presidential proclamations 
designating the Monument, NOAA will allow for regulated access to the 
sanctuary. Access will continue through a permit process. The sanctuary 
includes a permitting system modeled after the existing Monument 
permitting system, and was developed to allow for integration with the 
Monument permitting system, to ensure continued joint permitting 
administered by the MMB. The sanctuary has adopted the same permit 
criteria as currently required for the Monument, including for Native 
Hawaiian practices permits. See also the response to B.14.
    The criteria for the Monument Native Hawaiian practices permit were 
developed following a workshop in 2004 facilitated by Kia[revaps]i Kai, 
a graduate

[[Page 4876]]

program at the Kamakak[umacr]okalani Center for Hawaiian Studies at the 
University of Hawai[revaps]i at M[amacr]noa, collecting input from 
K[amacr]naka [revaps][Omacr]iwi cultural practitioners, fishermen, and 
others to create criteria for culturally-appropriate activities in 
Papah[amacr]naumoku[amacr]kea. For more than 20 years, the 
Papah[amacr]naumoku[amacr]kea Native Hawaiian Cultural Working Group 
(CWG) has provided guidance and advice. The CWG is a group of 
K[amacr]naka [revaps][Omacr]iwi k[umacr]puna (elders), researchers, 
cultural practitioners, educators, and community members that have deep 
connections and historical ties to Papah[amacr]naumoku[amacr]kea 
through a living pilina (relationship), bound by genealogy, cultural 
protocols, and values building contemporary multi-disciplinary research 
and practice. Although the group is not a formalized advisory body, the 
CWG and many of its members have been involved for over two decades 
since the establishment of the Northwestern Hawaiian Islands Coral Reef 
Ecosystem Reserve in 2000, and provide an important K[amacr]naka 
[revaps][Omacr]iwi perspective that continues to inform Monument 
management. Since 2007, there have been 34 Native Hawaiian practices 
permits issued to perpetuate cultural practices ranging from 
traditional voyaging navigator apprenticeship and training, Hawaiian-
led archaeological and cultural resource research, integrated cultural 
and scientific ecosystem monitoring, resource gathering including bird 
feathers/bones, and subsistence harvesting of fish, algae, and 
invertebrates. The growing number of Native Hawaiian permits submitted 
and issued provides significant support for and interest in conducting 
Hawaiian cultural practices, with at least eight ongoing cultural 
initiatives occurring on 27 separate expeditions.
    26. C-7 Comment: A commenter expressed concern that the findings of 
the Cultural Impact Assessment E Hoi I Ke Au A Kanaloa were not 
integrated in the draft EIS and the Western Pacific Regional Fishery 
Management Council's (WPRFMC) draft fishing regulations.
    Response: Findings of the Cultural Impact Assessment E Hoi I Ke Au 
A Kanaloa relating to the sanctuary proposal were addressed in Section 
2.3.2, and more extensively in Chapter 5, of the draft EIS. NOAA is 
preparing a separate proposed rule for regulations governing fishing in 
the MEA under the authority of the MSA. Therefore, development and 
analysis of non-commercial fishing regulations for the MEA is not part 
of this action and was not analyzed in the draft or final EIS. NOAA and 
the State encourage commenters to participate in the future public 
review process for non-commercial fishing regulations in the MEA under 
the authority of the MSA, and any associated NEPA and/or other 
environmental compliance documentation.
    27. C-8 Comment: A commenter expressed concern that ``Native 
Hawaiian'' is not defined. The commenter recommended the following 
language and definition be adopted and integrated into the final EIS: 
Native Hawaiian is defined as ``any individual who is a descendant of 
the aboriginal people who, prior to 1778, occupied and exercised 
sovereignty in the area that now constitutes the State of 
Hawai[revaps]i.'' The commenter also recommended the incorporation of 
other self-identification names, including but not limited to 
K[amacr]naka Maoli, K[amacr]naka [revaps][Omacr]iwi, and indigenous 
peoples or indigenous Native Hawaiians.
    Response: In the final EIS, NOAA recognizes a definition for the 
term Native Hawaiian as it is commonly defined per existing Federal law 
as any individual who is a descendant of the aboriginal people who, 
prior to 1778, occupied and exercised sovereignty in the area that now 
constitutes the State of Hawai[revaps]i. See Section 1.2.4. Throughout 
the EIS, NOAA also uses K[amacr]naka [revaps][Omacr]iwi and/or 
K[amacr]naka Maoli as terms that refer to Native Hawaiians.
    28. D-1 Comment: Commenters expressed opposition to any new fishing 
closures, citing reasons that included:
     Fishing becomes more difficult and expensive for 
fishermen, including the Hawai[revaps]i longline fishery. The small 
boat fishing industry will slowly go away;
     No scientific evidence that large marine reserves provide 
conservation benefits to fish stocks;
     Fishing areas should be managed under Magnuson-Stevens 
Fishery Conservation and Management Act (MSA), and closures do not 
support MSA Standard 1: Conservation and management measures shall 
prevent overfishing while achieving, on a continuing basis, the optimum 
yield from each fishery for the United States fishing industry;
     Fishing closures do not meet the administration's mandate 
for equity and justice for underserved communities;
     Fishing closures affect food security and well-being of 
Native Hawaiians;
     Intergenerational transmission of fishing traditions will 
be impeded or lost;
     Native Hawaiians should be able to fish for food; and
     Sanctuaries and fishing should be able to coexist.
    Response: NOAA is not establishing any new fishing closures through 
sanctuary designation. The sanctuary regulations regarding commercial 
and non-commercial fishing are consistent with the existing Monument 
and its management of the area. The presidential proclamations 
establishing the Monument broadly restrict the harvest of fishery 
resources by prohibiting removing, moving, taking, harvesting, 
possessing, injuring, disturbing, or damaging any living or nonliving 
Monument resource, as well as attempts to do the same, except as may be 
allowed with a permit. Presidential Proclamations 8031 and 9478 further 
specify prohibitions on commercial fishing and the possession of 
commercial fishing gear. The presidential proclamations also identify 
certain types of non-commercial fishing that may be regulated (i.e., 
allowed pursuant to a permit or incidental to a permitted activity). 
Presidential Proclamation 8031, for example, authorizes sustenance 
fishing incidental to an activity permitted in PMNM. Presidential 
Proclamation 9478, for example, provides that non-commercial fishing is 
a regulated activity (i.e., allowed only with a permit) in the MEA.
    In the sanctuary, the fishing regulations included in the final 
rule are consistent with Presidential Proclamation 9478 and the 
existing management of the area. This includes prohibiting commercial 
fishing and regulating non-commercial fishing pursuant to a sanctuary 
permit or authorized under the MSA in the Outer Sanctuary Zone. The 
final rule provides the first set of implementing regulation consistent 
with directives in Presidential Proclamation 9478, which has the force 
of law.
    29. D-2 Comment: Commenters provided suggestions and 
recommendations that appropriately regulated and monitored commercial 
fishing, including longline fishing and trolling, should be allowed in 
the sanctuary, as well as the ``small boat community.'' One commenter 
stated that regulated traditional small boat fisheries should have a 
place. One commenter also inquired whether opportunities/mechanisms for 
future re-evaluation and allowance of commercial fishing in the 
sanctuary exist. One commenter also stated that there should be fishing 
line limits to reduce overfishing.
    Response: In the sanctuary, fishing regulations are consistent with 
existing applicable law in the Monument. Existing applicable law in the 
area of the sanctuary prohibits commercial fishing. Presidential 
Proclamation 8031,

[[Page 4877]]

and its implementing regulations at 50 CFR part 404, prohibits 
commercial fishing for bottomfish and associated pelagic species in the 
Monument after June 15, 2011. Presidential Proclamation 9478 also 
prohibits commercial fishing in the MEA. Therefore, any consideration 
of regulations allowing commercial fishing in the sanctuary would not 
alter existing fishing prohibitions in the area. See the response to 
D.1 for more detail.
    30. D-3 Comment: Commenters expressed opposition to allowing 
commercial fishing in Papah[amacr]naumoku[amacr]kea.
    Response: For consistency with existing regulations and the 
presidential proclamations establishing the Monument, regulations 
include a sanctuary-wide prohibition on commercial fishing. See also 
the responses to D.1 and D.2.
    31. D-4 Comment: Commenters requested increased support for 
monitoring and enforcing fishing prohibitions, and requesting that 
international fishing vessels be prohibited.
    Response: Existing applicable law in the area of the sanctuary 
prohibits commercial fishing. NOAA and the State agree that monitoring 
and enforcement of fishing prohibitions is critical to protecting 
sanctuary resources. NOAA's Office of Law Enforcement and the U.S. 
Coast Guard support enforcement efforts across the National Marine 
Sanctuary System. To assist in this coordinated effort for Monument 
enforcement, ONMS facilitates a Monument Law Enforcement Coordination 
Team which is composed of law enforcement representatives from NOAA, 
USFWS, U.S. Coast Guard, and Hawai[revaps]i Division of Conservation 
and Resource Enforcement. This group meets regularly to coordinate 
joint enforcement efforts in the Monument.
    The designation of a national marine sanctuary provides the first 
set of implementing regulations for the directives in Presidential 
Proclamation 9478, including the prohibition on commercial fishing and 
regulation on non-commercial fishing. By establishing these new 
implementing regulations, NOAA will have new tools for enforcement, 
including the enforcement of fishing regulations. Sanctuary designation 
imparts a specific set of new benefits afforded by the NMSA, including 
the authorization to assess civil penalties for violations of the NMSA, 
including sanctuary regulations and permits.
    Additionally, foreign fishing has remained prohibited in U.S. 
waters since the introduction of the Magnuson-Stevens Fishery 
Conservation and Management Act of 1976. This prohibition was enacted 
on February 28, 1977 and remains in effect today with limited 
exceptions related to international fishery agreements that predated 
the MSA. There are no such allowances for foreign fishing activities 
within the U.S. EEZ that surrounds Hawai[revaps]i.
    Regarding monitoring, see also the responses to B.21 and K.2.
    32. D-5 Comment: Commenters expressed opposition to allowing non-
commercial fishing and to the exemption (for non-commercial fishing in 
the MEA) in the proposed sanctuary rule, based upon biological, 
cultural, or co-management considerations. Out of concern for the 
proposed exemption of non-commercial fishing permits, one commenter 
suggested that non-commercial fishing permits should only be rarely 
granted, and carry strict catch limits.
    Response: The presidential proclamations that established the 
Monument (8031 and 9478) served as benchmarks for drafting regulations 
for the sanctuary. The presidential proclamations identify certain 
types of non-commercial fishing that may be regulated (i.e., allowed 
pursuant to a permit or incidental to a permitted activity). 
Presidential Proclamation 8031 authorizes sustenance fishing incidental 
to an activity permitted in PMNM. Presidential Proclamation 9478 
provides that non-commercial fishing is a regulated activity (i.e., 
allowed only with a permit) in the MEA, provided that the fish 
harvested, either in whole or in part, cannot enter commerce through 
sale, barter, or trade, and that the resource is managed sustainably. 
In the sanctuary, for consistency with the proclamations, ``non-
commercial fishing'' is prohibited unless conducted pursuant to a 
sanctuary permit or through an exemption for non-commercial fishing 
authorized under the MSA in the Outer Sanctuary Zone (the area that 
overlaps with the MEA).
    In response to comments of concern for this exemption, NOAA has 
made changes to the exemption for non-commercial fishing to ensure that 
a non-commercial fishing permit authorized under the MSA is only exempt 
from a limited subset of prohibited or otherwise regulated activities, 
and that these exempted activities are only conducted as incidental to 
and necessary to a lawful non-commercial fishing activity. NOAA has 
also clarified that this narrow exemption from the sanctuary's 
permitting requirements is only applicable provided that the fish 
harvested, either in whole or in part, are neither intended to enter 
commerce nor enter commerce through sale, barter, or trade and that the 
resource is managed sustainably, consistent with Presidential 
Proclamation 9478. Moreover, for the exemption to apply, the fish 
harvested, either in whole or in part, must not be intended to be sold 
and shall not be sold for any purposes, including, but not limited to, 
cost-recovery. Corresponding changes have been made in the final EIS 
Section 3.3.1.
    NOAA is preparing a separate proposed rule for regulations 
governing fishing in the MEA under the authority of the MSA, and will 
invite the public to provide comments on the proposed non-commercial 
fishing regulations for the MEA. NOAA and the State encourage 
commenters to participate in the future public review process for non-
commercial fishing regulations in the MEA under the authority of the 
MSA, including on the issuance of permits and catch limits, as those 
are outside the scope of this action.
    33. D-6 Comment: Some commenters stated that fishing should not be 
restricted for Native Hawaiians and Indigenous populations and/or 
cultural practices. One commenter emphasized that it is culturally 
important to be able to bring fish home to share with family.
    Response: Consistent with the existing management of the Monument 
and the proclamations that established the Monument, NOAA would 
continue to allow for regulated access to the sanctuary. K[amacr]naka 
[revaps][Omacr]iwi and Indigenous communities may apply for a permit to 
fish within the sanctuary. For consistency with the proclamations that 
established the Monument, ``non-commercial fishing'' is prohibited in 
the Sanctuary unless conducted pursuant to a sanctuary permit or 
authorized under the MSA in the Outer Sanctuary Zone. See the response 
to D.5. In the Outer Sanctuary Zone, the sanctuary regulations will not 
restrict the sharing of fish from non-commercial fishing activities 
authorized under the MSA.
    34. D-7 Comment: A commenter requested that sustenance fishing be 
the only form of fishing allowed in the proposed sanctuary; and that 
there be a requirement that fish caught be consumed within the 
sanctuary, and not taken outside of the sanctuary. Others requested 
that sustenance fishing be allowed conditionally. Suggested conditions 
include by location; by permit type, and by sustainability criteria: 
(1) the activity must be ``pono;'' (2) the activity must benefit the 
resources of the Northwestern Hawaiian Islands and the Native Hawaiian 
community; and (3) any resource

[[Page 4878]]

harvested from the Monument must be consumed in the Monument. Finally, 
one commenter supported defining sustenance fishing as a Native 
Hawaiian practice.
    Response: Sustenance fishing is currently allowed incidental to an 
activity permitted in PMNM, pursuant to Presidential Proclamation 8031, 
and the implementing regulations at 50 CFR part 404. Sustenance fishing 
was not specifically identified in Presidential Proclamation 9478 
governing the MEA, but is considered a form of non-commercial fishing 
which may be regulated. For consistency in management and permitting, 
NOAA will manage this activity as a term or condition of a general 
permit or special use permit for the sanctuary, outside of any special 
preservation area. NOAA's sanctuary permit will follow the conditions 
of the existing Monument permitting system, including the 
considerations that sustenance fishing must be conducted only for the 
purpose of providing sustenance in support of activities otherwise 
allowed under an established permit and that the harvested resource 
must be consumed within the Monument.
    In the Outer Sanctuary Zone, other types of non-commercial fishing 
may be allowed, consistent with the proper care and management of 
sanctuary resources and monument objects. Sanctuary designation 
provides the first set of implementing regulations for many of the 
directives in Presidential Proclamation 9478, including the regulation 
of non-commercial fishing in the MEA. Presidential Proclamation 9478 
stated that non-commercial fishing may be regulated ``provided that the 
fish harvested, either in whole or in part, cannot enter commerce 
through sale, barter, or trade, and that the resource is managed 
sustainably.'' Consistent with this proclamation, some forms of non-
commercial fishing beyond sustenance fishing may be allowed in the MEA/
Outer Sanctuary Zone.
    NOAA is preparing a separate proposed rule for regulations 
governing fishing in the MEA under the authority of the MSA, and will 
invite the public to provide comments on the proposed non-commercial 
fishing regulations for the MEA. NOAA and the State encourage 
commenters to participate during that process.
    35. D-8 Comment: Some commenters suggested that only subsistence 
fishing be allowed in the proposed sanctuary.
    Response: In State of Hawai[revaps]i waters, extending three miles 
seaward of any coastline (excluding Midway Atoll), Native Hawaiian 
subsistence fishing, as defined by the State of Hawai[revaps]i, may be 
allowed. NOAA acknowledges that the Monument's managing agencies define 
sustenance and/or subsistence fishing in different ways. Regardless, in 
PMNM, all fish caught shall be consumed within the Monument. Within the 
sanctuary, sustenance fishing would continue to be allowed (outside of 
the special preservation areas) to provide sustenance in support of 
activities otherwise allowed under an established permit.
    36. D-9 Comment: Commenters asked why regulations have not been 
issued for the MEA to manage non-commercial fishing.
    Response: President Obama issued Presidential Proclamation 9478 on 
August 31, 2016, which established the MEA. On September 23, 2016, NOAA 
Fisheries requested that the Western Pacific Regional Fishery 
Management Council (WPRFMC) develop recommendations to establish 
fishing regulations under the MSA, including the prohibition on 
commercial fishing and the regulation of non-commercial fishing within 
the MEA. However, no further action was taken by the WPRFMC in response 
to Presidential Proclamation 9478 at that time. NOAA cannot speculate 
as to why WPRFMC decided not to take action at that time.
    NOAA is preparing a separate proposed rule for regulations 
governing fishing in the MEA under the authority of the MSA to reflect 
the outcome of the WPRFMC recommendation and the NMSA Section 304(a)(5) 
process. Appendix C to the final EIS provides further details of this 
consultation process.
    37. D-10 Comment: Commenters expressed concern regarding the 
exemption of non-commercial fishing in the MEA, and that the issuance 
of non-commercial fishing permits will open the door to other types of 
fishing in Papah[amacr]naumoku[amacr]kea. Commenters also expressed 
concern that a sanctuary designation would remove existing protections 
that prohibit various forms of fishing. One commenter recommended 
removing the exemption of non-commercial fishing to allow for more 
dialogue with the Native Hawaiian community.
    Response: See the responses to D.5 and F.4. Sanctuary designation 
does not remove any existing protections that prohibit fishing. For 
consistency with the presidential proclamations establishing the 
Monument and the regulations at 50 CFR part 404, the sanctuary 
regulations will authorize limited forms of fishing.
    38. D-11 Comment: Commenters expressed support for allowing 
recreational fishing, to sustain the community and to allow for 
cultural and traditional practices. One commenter recommended that 
recreational fishing be monitored and regulated; that recreational 
fishers be required to attend courses to receive permits; and that NOAA 
and the State of Hawai[revaps]i update methods of data collection for 
recreational fishing. Another commenter suggested imposing fees for 
recreational fishing. Other commenters requested that NOAA implement 
measures to prevent recreational fishers from targeting ``trophy'' 
fish, and to limit fishing in general, to stem overfishing.
    Response: For consistency with the proclamations, ``non-commercial 
fishing'' is prohibited in the Sanctuary unless conducted pursuant to a 
sanctuary permit or, as discussed below, through an exemption for non-
commercial fishing authorized under the MSA in the Outer Sanctuary 
Zone. The final rule adopts the definition of ``non-commercial 
fishing'' from the regulations for fisheries in the Western Pacific, 
which is defined as ``fishing that does not meet the definition of 
commercial fishing in the Magnuson-Stevens Fishery Conservation and 
Management Act, and includes, but is not limited to, sustenance, 
subsistence, traditional indigenous, and recreational fishing'' (50 CFR 
665.12). NOAA will periodically evaluate the effect of non-commercial 
fishing activities on sanctuary resources. Such evaluations would take 
into consideration the best scientific information available and 
evaluate whether additional actions are necessary for the proper care 
and management of sanctuary resources, including fishery resources, 
consistent with goals and objectives of the sanctuary.
    Any requirements for non-commercial fishing permits authorized by 
NOAA Fisheries under the MSA are outside the scope of this action. NOAA 
is preparing a separate proposed rule for regulations governing fishing 
in the MEA under the authority of the MSA, and will invite the public 
to provide comments on the proposed non-commercial fishing regulations. 
NOAA and the State encourage commenters to provide input during the 
public review process for non-commercial fishing in the MEA.
    39. D-12 Comment: A commenter expressed opposition to the issuance 
of permits for recreational fishing in the MEA.
    Response: Please see the response to D.11. As required by Section 
304(a)(5) of the NMSA, NOAA consulted with the WPRFMC to recommend any 
draft fishing regulations it deemed necessary to implement the 
sanctuary designation.

[[Page 4879]]

The WPRFMC determined it was necessary to develop non-commercial 
fishing regulations, including for recreational fishing, for the area 
of the proposed sanctuary that overlaps with the MEA
    40. D-13 Comment: Commenters expressed support for non-commercial 
fishing in the MEA proposed by WPRFMC, including allowing sale and/or 
cost recovery.
    Response: In accordance with Section 304(a)(5) of the NMSA, NOAA 
provided the WPRFMC with the opportunity to recommend any draft fishing 
regulations it deemed necessary to implement the proposed sanctuary 
designation. NOAA accepted the majority of the WPRFMC's recommendation, 
including those parts that were found to fulfill the purposes and 
policies of the NMSA and the goals and objectives of the proposed 
sanctuary designation. However, the WPRFMC's recommendation providing 
Native Hawaiian subsistence practices fishing permit applicants the 
ability to request limited cost recovery by selling their catch failed 
to fulfill the purposes and policies of the NMSA and the goals and 
objectives of the proposed sanctuary designation (see NOAA Response 
Letter dated on May 31, 2023, in the final EIS Appendix C.1). NOAA is 
preparing a separate proposed rule under the MSA to reflect the outcome 
of the NMSA Section 304(a)(5) consultation process. Appendix C to the 
final EIS provides further details on this consultation process.
    41. D-14 Comment: Commenters expressed opposition to the annual 
catch limits proposed by WPRFMC. Several comments expressed concern 
that it does not align with Native Hawaiian cultural or subsistence 
practices. One commenter suggested additional involvement from the 
Native Hawaiian community and the Office of Hawaiian Affairs (OHA) on 
this matter.
    Response: Any requirements and conditions for non-commercial 
fishing permits authorized by the MSA are outside the scope of this 
action. NOAA is preparing a separate proposed rule for regulations 
governing fishing in the MEA under the authority of the MSA, and will 
invite the public to provide comments on the proposed non-commercial 
fishing regulations, including the catch limits. NOAA and the State 
encourage commenters to participate in the future public review process 
for non-commercial fishing in the MEA.
    42. D-15 Comment: Commenters expressed opposition to any sale, 
barter, or trade and the cost recovery mechanism proposed by WPRFMC. 
Comments also expressed concern regarding WPRFMC's definition of 
``customary exchange'' and that it does not align with Native Hawaiian 
cultural or subsistence practices.
    Response: NOAA agrees with some aspects of this comment. See the 
response to D.13 for information on NOAA's consideration of the 
WPRFMC's recommended fishing regulations, and the response to D.5 for 
details of the exemption for non-commercial fishing. NOAA has narrowed 
this exemption, making it only applicable provided that the fish 
harvested, either in whole or in part, are neither intended to enter 
commerce nor enter commerce through sale, barter, or trade and that the 
resource is managed sustainably, consistent with Presidential 
Proclamation 9478. Moreover, for the exemption to apply, the fish 
harvested, either in whole or in part, are not intended to be sold and 
shall not be sold for any purposes, including, but not limited to, 
cost-recovery. See the final EIS, Section 3.3.1. The WPRFMC's final 
recommendation (April 23, 2023) did not include a definition of 
``customary exchange'', and NOAA ONMS has not included a definition of 
customary exchange in the sanctuary regulations.
    43. D-16 Comment: Commenters requested that NOAA reject the 
proposed non-commercial fishing regulations by NOAA Fisheries and 
WPRFMC.
    Response: NOAA accepted the majority of the WPRFMC's recommendation 
as it was found to fulfill the purposes and policies of the NMSA and 
the goals and objectives of the proposed sanctuary designation. 
However, NOAA did reject a portion of the WPRFMC's recommendation that 
would have allowed sale of catch under a Native Hawaiian subsistence 
fishing practices permit, as it was not found to fulfill the goals and 
objectives of the sanctuary designation. See the response to D.13, as 
well as Appendix C to the final EIS, for further details of this 
consultation process.
    44. D-17 Comment: Commenters expressed concern for a portion of the 
WPRFMC's recommendation on ``research fishing,'' and definition that 
would include ``research fishing'' as a form of non-commercial fishing.
    Response: NOAA is preparing a separate proposed rule for 
regulations governing fishing in the MEA under the authority of the 
MSA, based on the WPRFMC's recommendations. NOAA and the State 
encourage commenters to provide additional input, including on research 
fishing, to the future public review process for non-commercial fishing 
regulations in the MEA.
    45. D-18 Comment: A commenter expressed concern that while 
resources in the Monument are a co-management trust responsibility, the 
proposed fishing regulations for the MEA have been developed without 
adequate inclusion of the perspectives of the Monument co-managers.
    Response: NMSA Section 304(a)(5) required NOAA to consult with the 
WPRFMC to recommend any draft fishing regulations it deemed necessary 
to implement the sanctuary designation. The State of Hawai[revaps]i 
maintains voting seats, and the USFWS maintains non-voting seats on the 
WPRFMC. The WPRFMC determined it was necessary to develop non-
commercial fishing regulations under the MSA, for the area of the 
proposed sanctuary that overlaps with the MEA. In accordance with the 
Section 304(a)(5) process, NOAA accepted those parts of the WPRFMC's 
recommendation that fulfilled the purposes and policies of the NMSA and 
the goals and objectives of the proposed sanctuary designation, and 
rejected those parts that did not. Under the MSA's rulemaking process, 
the WPRFMC will transmit its recommendation to NOAA Fisheries, who will 
then prepare a proposed rule for non-commercial fishing regulations in 
the MEA under the MSA.
    46. D-19 Comment: Commenters expressed concern regarding the 
separation of the NOAA Fisheries fishing regulations from the sanctuary 
designation process, which lacks transparency and thorough analysis of 
potential impacts. Commenters also requested an additional EIS and a 
public review of the proposed fishing regulations for the MEA. 
Commenters expressed concern that the proposed fishing regulations were 
developed in an improper sequence and there was no timeline included. 
Commenters also stated that impacts of WPRFMC's proposed non-commercial 
fishing regulations should have been analyzed within the draft EIS.
    Response: NOAA acknowledges the confusion regarding the timeline of 
proposed fishing regulations for the MEA. NOAA Fisheries is responsible 
for fisheries management under the MSA and is preparing a separate 
proposed rule for regulations governing fishing in the MEA under the 
authority of the MSA. NOAA Fisheries will analyze the environmental 
impacts of the non-commercial fishing regulations in the MEA under the 
authority of the MSA in a manner consistent with NEPA. NOAA has made 
revisions in sections 1.4 and 3.7.2 of the final EIS to clarify this. 
NOAA and the State encourage commenters to participate in the future

[[Page 4880]]

public review process for non-commercial fishing regulations in the MEA 
under the authority of the MSA.
    47. D-23 Comment: A commenter recommended that any activity 
relating to the extraction of fish be led by Native Hawaiians.
    Response: The permitting system and regulations for the sanctuary 
is modeled after the existing Monument regulations and permitting 
system. The permitting system would not supplant the joint permitting 
system for the Monument, and was developed to ensure a continued joint 
permitting system administered by the MMB. While the presidential 
proclamations establishing the Monument broadly restrict the harvest of 
fishery resources, and identify certain types of non-commercial fishing 
that may be regulated (i.e., allowed pursuant to a permit or incidental 
to a permitted activity), there are no restrictions as to who may apply 
for a permit. Sanctuary designation will not change this.
    48. D-24 Comment: Commenters expressed opposition to allowing any 
form of fishing in the proposed sanctuary. Some associated comments 
stated opposition to the removal of any wildlife from the proposed 
sanctuary.
    Response: See the response to D.1. The presidential proclamations 
establishing the Monument broadly restrict the harvest of fishery 
resources and further specify prohibitions on commercial fishing and 
identify certain types of non-commercial fishing that may be regulated. 
In the sanctuary, regulations for fishing are consistent with the 
proclamations and existing management of the area.
    49. D-25 Comment: A commenter requested that, in the event of a 
natural disaster occurring with severe impacts to the food supply of 
Hawai[revaps]i, the proposed sanctuary should allow for sustenance 
fishing and sharing of fish with community.
    Response: NOAA cannot speculate about how the NMSA and other 
authorities may or may not be used in the future scenario described by 
the commenter. However, in the Outer Sanctuary Zone (MEA), the 
sanctuary regulations will not restrict the sharing of fish from non-
commercial fishing activities authorized under the MSA.
    50. D-26 Comment: A commenter emphasized that new sanctuary 
regulations should be limited to those relating to the seafloor and 
islands within the MEA, as the MSA already provides for the management 
of fisheries in all U.S. waters.
    Response: NOAA may regulate fishing under the MSA and the NMSA. See 
also the response to D.9. While NOAA may regulate fishing under NMSA, 
and regulates fishing in the sanctuary consistent with the existing 
management of the area, per section 304(a)(5) of the NMSA, NOAA also 
provided the WPRFMC with the opportunity to recommend any draft fishing 
regulations it deemed necessary to implement the proposed sanctuary 
designation. NOAA is preparing a separate proposed rule for regulations 
governing fishing in the MEA under the authority of the MSA to reflect 
the outcome of the NMSA section 304(a)(5) process.
    51. D-27 Comment: A commenter expressed opposition to any 
prohibitions that may affect existing community-based subsistence 
fishery areas, and requested that NOAA incorporate language that 
explicitly includes community- and cultural-based subsistence-based 
fishing practices as part of protected Native Hawaiian customs and 
practices.
    Response: Community-based subsistence fishery areas are locally 
based, legally designated areas in the Main Hawaiian Islands where 
communities and the state government work together to protect and 
support traditional Hawaiian fishing practices. To date, there have 
been no community-based subsistence fishery areas established within 
Papah[amacr]naumoku[amacr]kea. Since these areas are typically 
initiated at the local level by communities seeking enhanced protection 
of their nearshore resources, the future establishment of a community-
based subsistence fishery area within Papah[amacr]naumoku[amacr]kea is 
unlikely. As such, a discussion of such areas is beyond the scope of 
this action. For a description of how culturally-based subsistence 
fishing practices are addressed within the sanctuary, please see the 
response to D.8.
    52. E-1 Comment: Commenters asked how a proposed sanctuary would 
modify the existing co-management structure for the Monument. 
Commenters requested articulation of roles of OHA, USFWS, and the State 
of Hawai[revaps]i, specifically who has jurisdiction in which areas, as 
well as requested that the EIS provide a detailed governance framework 
and a dispute resolution process for the proposed sanctuary. Commenters 
also stated that the draft EIS and/or draft sanctuary management plan 
did not clearly articulate how the sanctuary would function in 
coordination with the existing Monument, nor articulate how the 
Monument co-trustee's authorities could be used to supplement and 
complement NOAA authorities. One commenter suggested that NOAA provide 
a graphic depicting the relationship of the proposed sanctuary with 
existing Monument management. Finally, some commenters questioned if 
there are deficiencies in the existing Monument management framework, 
while one commenter stated that the proposed sanctuary rule has led to 
confusion over the legitimacy of the Monument co-management framework.
    Response: The existing Monument is jointly administered by the four 
co-trustees (DOC, DOI, State of Hawai[revaps]i, and OHA) through the 
seven-member MMB. ONMS and NOAA Fisheries collaborate to fulfill DOC's 
co-trustee responsibilities under the Monument, and ONMS serves on the 
seven-member MMB. A graphic of the existing management structure is 
described in the final EIS Section 3.2. Sanctuary designation will not 
change the existing management structure, and ONMS' role within the 
management framework will remain, with the added authority provided by 
the NMSA. Additional information has been added to the sanctuary 
management plan in sections 1 (About This Document) and 2 (Cooperative 
and Coordinated Management) and Acknowledgements to clarify this. NOAA 
has also made revisions to the description of the No Action Alternative 
in Section 3.2 of the final EIS to better articulate the existing roles 
of each Monument co-trustee, including their jurisdiction and 
authorities that guide their role in managing the Monument. Existing 
authorities, including management authorities of all Monument co-
trustees, will remain in effect under all action alternatives.
    As a result of the existing Monument management framework, of which 
ONMS is a critical part, the final rule and sanctuary management plan 
have been specifically designed to be consistent with the current 
management framework, and to allow for seamless operations between the 
Monument and sanctuary. The sanctuary will supplement and complement 
existing management of the Monument, and not replace or diminish the 
existing management of the Monument. In accordance with the NMSA, in 
designating a sanctuary, NOAA determines if existing authorities should 
be supplemented to ensure coordinated and comprehensive conservation 
and management of the area.
    NOAA has provided additional details clarifying consistency with 
the management framework in Section 3.3.1 of the final EIS. 
Specifically, NOAA will work in cooperation with the Monument co-
trustees to update the existing MOA for the Monument with

[[Page 4881]]

the State of Hawai[revaps]i, DOI/USFWS, and OHA to reflect the addition 
of the sanctuary. Further, the existing Monument MOA includes a 
provision that states that ``in the event of the designation of the 
Monument or any portion of the Monument as a National Marine Sanctuary 
under the National Marine Sanctuaries Act, nothing herein shall be 
construed as automatically terminating or otherwise amending this 
Agreement.''
    53. E-2 Comment: Commenters expressed concerns regarding the 
exclusion of some of the Monument co-trustee agencies from co-
management of the sanctuary. Commenters requested that NOAA co-manage 
the sanctuary with all of the Monument co-trustees (DOI, OHA, and the 
State of Hawai[revaps]i), and that NOAA should receive approval from 
and/or collaborate with the other co-trustees regarding decision making 
for the sanctuary. Commenters also requested that a MOA be developed to 
articulate the governance framework for the sanctuary, and any co-
management agreement.
    Response: NOAA has clarified in the final rule and the final EIS 
(see final EIS Section 3.3.1, final rule Section IV.D, and sanctuary 
management plan Section 2) how the sanctuary will be managed in 
partnership with USFWS and OHA. In the proposed rule, NOAA proposed 
that the sanctuary would be co-managed with the State of Hawai`i. 
Recognition of the State of Hawai`i as a co-manager was not meant to 
exclude the other Monument co-trustees, USFWS and OHA. To the contrary, 
partnerships with other Federal and State agencies with overlapping 
jurisdiction are critical to the success of the National Marine 
Sanctuary System. In the proposed regulations, NOAA was trying to 
explain the role that states may have in co-managing a sanctuary under 
the NMSA if all or part of the proposed sanctuary is within the 
territorial limits of any state. In the final regulations and 
management plan, NOAA has added new text regarding how NOAA will manage 
the sanctuary in partnership with the other Monument co-trustees, DOI/
USFWS and OHA, as the existing co-management structure of 
Papah[amacr]naumoku[amacr]kea Marine National Monument is critical to 
the success of the sanctuary.
    NOAA intends to, in cooperation with the Monument co-trustees, 
update the existing MOA for the Monument between the State of 
Hawai[revaps]i, DOI/USFWS, and OHA to reflect the addition of the 
sanctuary. NOAA is developing an MOU with the USFWS to provide details 
on using supplemental authority under the NMSA to protect resources 
where the sanctuary overlaps with national wildlife refuges. Finally, 
the sanctuary management plan was developed in consultation with the 
State, USFWS, and OHA to explicitly ensure concurrence of plans between 
the sanctuary and the Monument. Additional language has been added to 
the sanctuary management plan (Appendix A) to better reflect the goal 
of cooperative management with the Monument co-trustees.
    54. E-3 Comment: Commenters requested that the final EIS should 
include a clear description of the permitting system for the proposed 
sanctuary and how it would relate to the existing Monument permitting 
system, including how sanctuary permits would be reviewed, approved, 
and conditioned. Commenters expressed that NOAA should not have sole 
authority over permitting for activities in the area of the sanctuary 
and Monument; that only one permitting system should apply to the area; 
that permits should be approved by all Monument co-trustees; and that 
the Monument permit process should be amended to include sanctuary 
permitting. One commenter expressed concern regarding the proposed 
special use permit, which allows for fee collection for permit 
processing. The commenter questioned how this would work alongside the 
Monument permit process, and asked if NOAA would keep fees internally, 
or divide fees received equitably amongst Monument co-managers.
    Response: The Monument's joint permitting system has been in place 
and permits have been issued by the co-trustees since 2007. The unified 
Monument permitting process includes a unified Monument permit 
application, instructions, and template (see final EIS Section 3.2). 
All permitted activities in PMNM are authorized under the issuance of a 
single Monument permit signed by the USFWS, NOAA, and the State of 
Hawai[revaps]i, in cooperation with OHA. The sanctuary permitting 
system would complement the existing Monument permitting system, and 
was developed to allow for integration with the Monument permitting 
system, to ensure continued joint permitting administered by the MMB, 
which includes ONMS. The sanctuary permitting system would not supplant 
the joint permitting system for PMNM. The sanctuary permit categories 
were designed to provide the same management function and permittee 
interface as the current Monument permit categories. The sanctuary 
adopts the same permit criteria as currently required for Monument 
permits, including the additional criteria for Native Hawaiian 
practices and recreation permits. To provide more clarity, NOAA has 
updated its description of the sanctuary permitting process in the 
final EIS, Section 3.3.1.
    Prior to sanctuary designation, regulations to issue permits in the 
MEA had not been established and activities in the MEA have been 
approved via a Letter of Authorization signed by USFWS. The co-trustees 
agreed to implement this USFWS process as an interim measure. Sanctuary 
designation provides the first set of implementing regulations 
consistent with directives in Presidential Proclamation 9478, including 
regulations for permitting, in addition to governing the sanctuary.
    Regarding special use permits, NOAA intends for any issuance of 
special use permits to be done so in coordination with the existing 
permit process. NOAA points out that while the Monument is jointly 
administered, some areas are also guided by other specific authorities. 
For example, USFWS has the authority to charge fees for services 
including public visitation (50 CFR part 25 Subpart E) in areas of the 
Monument that also fall within a national wildlife refuge. NOAA's 
authority to collect fees for special use permits provides Monument 
managers with a larger area, beyond the national wildlife refuges, for 
which permit fees may be collected for specific activities. In 
accordance with the NMSA, NOAA may recover administrative costs for 
staff time to review and take action on the permit, and for a fair 
market value for use of the sanctuary. While this authority may be 
used, the collection of fees is not required. Further, NOAA is not 
proposing any new category of activity subject to a special use permit 
as part of this designation, and due to the existing regulations for 
the Monument and the sanctuary, the issuance of special use permits is 
expected to be limited.
    55. E-4 Comment: Commenters expressed concern regarding the 
proposed process for permitting non-commercial fishing in the MEA. 
Commenters specifically stated that any fishing permits should also 
require a consistency review by the Monument co-managers. Some 
commenters suggested that non-commercial fishing in the MEA should be 
part of a single permitting process for the sanctuary and/or Monument, 
and not done through a separate process, noting that any permits that 
authorize resource extraction should be reviewed by the MMB.
    Response: NOAA's ONMS will not issue non-commercial fishing permits 
as part of the sanctuary regulations, but

[[Page 4882]]

will allow sustenance fishing as a term or condition of a permit, 
consistent with existing management of the Monument. In response to a 
recommendation for fishing regulations in the MEA by the WPRFMC, NOAA 
Fisheries is preparing a separate proposed rule for regulations 
governing fishing in the MEA under the authority of the MSA, will 
complete the environmental compliance requirements, and will accept 
public comment on the proposal. NOAA and the State of Hawai[revaps]i 
encourage the commenter to review and participate in the future public 
review process for the proposed rule and any associated NEPA and/or 
other environmental compliance documentation for non-commercial fishing 
regulations in the MEA.
    56. E-5 Comment: Commenters expressed concern regarding potential 
conflicts between the proposed sanctuary permitting process and 
permitting authorized by the USFWS for the Midway Atoll and Hawaiian 
Islands National Wildlife Refuges. One commenter stated that the USFWS 
has an existing process to review and issue permits to regulate use of 
the national wildlife refuges for research, education, management, and 
recreation. A commenter suggested the development of a MOU among USFWS, 
NOAA, and the State of Hawai[revaps]i to clarify the permit process, 
which should include provisions for dispute resolution and for 
emergency situations when actions are necessary to protect human health 
and safety on Midway Atoll. Commenters also expressed concern regarding 
the permitting of activities in the MEA, including questioning why NOAA 
does not recognize DOI's authority to issue permits in the MEA, and 
requested that any new permitting in the MEA should be done following 
agreement with the MMB. Finally, one commenter questioned if the USFWS 
would need to acquire permits from NOAA for management activities in 
the national wildlife refuge waters.
    Response: NOAA has added additional clarification in the final rule 
and the final EIS (see Section 3.3.1 and Section IV.D in the preamble 
of the final rule) regarding how the sanctuary will be managed in 
partnership with other agencies. In addition to co-management with the 
State, NOAA will manage the sanctuary in partnership with the USFWS and 
OHA consistent with the management of the Monument. NOAA will work in 
cooperation with Monument co-trustees to update the memorandum of 
agreement for the Monument with the State of Hawai`i, DOI/USFWS, and 
OHA that reflects the addition of the sanctuary, and specifically 
addresses how the addition of a sanctuary will supplement and 
complement, and not supplant, the existing Monument management 
framework. NOAA and USFWS are developing an agreement to provide 
details on the execution of sanctuary management where the national 
marine sanctuary overlaps with Midway Atoll National Wildlife Refuge 
and Hawaiian Islands National Wildlife Refuge, and will consider if 
provisions are needed for dispute resolution and for emergency 
situations when actions are necessary to protect human health and 
safety on Midway Atoll.
    Management of the MEA is governed by Presidential Proclamation 
9478. Prior to sanctuary designation, regulations to issue permits in 
the MEA had not yet been established and activities in the MEA have 
been approved via a Letter of Authorization signed by USFWS. The co-
trustees agreed to implement this USFWS process as an interim measure. 
Sanctuary designation provides the first set of implementing 
regulations, including regulations for permitting, in the MEA.
    57. E-6 Comment: Commenters requested that NOAA co-manage the 
sanctuary specifically with the USFWS, and/or that NOAA consult with 
USFWS for decision making and environmental analysis in the proposed 
sanctuary. Some commenters also requested that NOAA recognize the 
authority of the USFWS, that NOAA not supersede the authority of the 
USFWS, and that NOAA acknowledge that the USFWS has sole authority for 
certain decisions in the national wildlife refuges. Some commenters 
expressed concern that the proposed sanctuary would give NOAA and the 
State of Hawai[revaps]i precedence over USFWS management of refuge 
waters. One commenter recommended that a MOA be developed and signed by 
the Secretaries of Interior and Commerce, and that a 3rd party neutral 
facilitator be selected to oversee implementation of the MOA. The 
commenter specified that the MOA should be reviewed and updated, as 
needed, every five years.
    Response: NOAA will manage the sanctuary in partnership with the 
USFWS. Nothing in the establishment of the national marine sanctuary 
will diminish USFWS's authority to administer Midway Atoll National 
Wildlife Refuge and Hawaiian Islands National Wildlife Refuge under the 
National Wildlife Refuge System Administration Act. Where 
Papah[amacr]naumoku[amacr]kea National Marine Sanctuary overlays Midway 
Atoll National Wildlife Refuge and Hawaiian Islands National Wildlife 
Refuge, NOAA will implement the National Marine Sanctuaries Act to 
provide supplemental authority to protect resources.
    In other sanctuary sites, when there is jurisdictional overlap 
between NOAA and USFWS, the agencies have worked to implement their 
respective authorities in a manner that complements, but does not 
diminish or interfere with, existing authorities and strengthens 
existing protections and management. NOAA and USFWS are developing an 
agreement to provide details on the execution of sanctuary management 
where the national marine sanctuary overlaps with Midway Atoll National 
Wildlife Refuge and Hawaiian Islands National Wildlife Refuge. Any 
agreement developed between NOAA and the USFWS will be updated as 
needed, as determined by the agencies.
    58. E-7 Comment: Commenters requested that NOAA co-manage the 
sanctuary specifically with OHA. Commenters emphasized that excluding 
OHA would be akin to suppressing Native Hawaiian voices and/or usurping 
the sovereignty of OHA. Commenters requested that NOAA consider 
temporarily halting sanctuary designation until Federal law allows for 
explicit co-management structures that include native governing bodies 
as equal decision-makers, and requested that NOAA work with OHA and the 
Native Hawaiian community to achieve the ability for Indigenous 
governing bodies to be eligible to be named as co-managers for marine 
sanctuaries under the NMSA. One commenter also pointed out that for 
National Marine Sanctuary of American Samoa, the American Samoa 
Department of Commerce has been designated as a co-manager to assist 
NOAA with the administration of the sanctuary, and therefore, OHA 
should be able to serve as a co-manager of the proposed sanctuary.
    Response: NOAA will manage the sanctuary in partnership with the 
OHA, consistent with the management of the Monument. The existing co-
management structure of the Monument and cooperation with OHA is 
critical to the success of the sanctuary. NOAA will work in cooperation 
with Monument co-trustee to update the Memorandum of Agreement for 
Promoting Coordinated Management of Papah[amacr]naumoku[amacr]kea 
Marine National Monument with the State of Hawai[revaps]i, DOI/USFWS, 
and OHA that reflects the addition of the sanctuary, and specifically 
addresses how the addition of a sanctuary will supplement and 
complement, and not supplant, the existing Monument management 
framework. Under Monument management, OHA has primary responsibility 
for representing the interests of the K[amacr]naka [revaps][Omacr]iwi

[[Page 4883]]

community in the perpetuation of Hawaiian cultural resources and 
practices. Sanctuary designation will not change this, and NOAA intends 
to consult with OHA on all matters related to the perpetuation of 
Hawaiian cultural resources and practices.
    Pursuant to the NMSA, a ``state'' as defined under the act, may 
have a role in co-managing a sanctuary if all or part of the proposed 
sanctuary is within the territorial limits of any state. For this 
reason, NOAA will co-manage the sanctuary with the State of 
Hawai[revaps]i. In addition, pursuant to the NMSA, the ``state'' means 
each of the several States, the District of Columbia, the Commonwealth 
of Puerto Rico, the Commonwealth of the Northern Mariana Islands, 
American Samoa, the Virgin Islands, Guam, and any other commonwealth, 
territory, or possession of the United States. As the NMSA also defines 
``state'' to include American Samoa, they may be a co-manager of 
National Marine Sanctuary of American Samoa, and the American Samoa 
Department of Commerce acts as the lead territorial agency.
    59. E-8 Comment: Commenters requested that NOAA co-manage the 
sanctuary with Native Hawaiians, noting that it is critical for Native 
Hawaiians to be present, participatory, and empowered in all decision-
making aspects regarding Papah[amacr]naumoku[amacr]kea. Commenters 
requested that Native Hawaiians should direct and oversee plans for the 
sanctuary, and that NOAA should defer to opinions of Native Hawaiian 
groups and agencies. Some commenters suggested that management with 
Native Hawaiians go beyond co-management with OHA.
    Response: See the response to E.7, regarding how NOAA will manage 
the sanctuary in partnership with OHA, but NOAA also agrees that there 
are opportunities for co-stewardship with the K[amacr]naka 
[revaps][Omacr]iwi community beyond OHA. NOAA agrees that it is 
important to have K[amacr]naka [revaps][Omacr]iwi expertise in 
management, including in leadership roles and that growing long-lasting 
partnerships with existing K[amacr]naka [revaps][Omacr]iwi community 
partners is integral to management of the sanctuary (see the responses 
to C.2 and K.1).
    NOAA has a responsibility to, and takes opportunities to work 
through equitable partnerships with all Indigenous Peoples. The Imila-
alpa Commitments demonstrate ONMS' dedication to strengthening 
partnerships with Indigenous governments, organizations, and 
communities and ensuring that ONMS' intentions align with its actions. 
The commitments also state that ONMS will work to implement White House 
and NOAA guidance on integrating Indigenous knowledge into processes 
and approaches.
    60. E-9 Comment: Commenters suggested or requested that the Native 
Hawaiian CWG be granted authority in reviewing and approving permits to 
access Papah[amacr]naumoku[amacr]kea and/or be granted authority to vet 
the permit applications. Some commenters suggested that the Native 
Hawaiian Cultural Working Group should be included as a fifth co-
trustee of the Monument.
    Response: For more than 20 years, the CWG, which advises OHA as a 
co-trustee of the Monument, has provided guidance and an important 
Native Hawaiian perspective to inform Monument management. The CWG is a 
group of K[amacr]naka [revaps][Omacr]iwi k[umacr]puna (elders), 
researchers, cultural practitioners, educators, and community members 
that have deep connections and historical ties to 
Papah[amacr]naumoku[amacr]kea through a living pilina (relationship) 
bound by genealogy, cultural protocols, and values building 
contemporary multi-disciplinary research and practice. The CWG and many 
of its members have been involved since ONMS created the CWG following 
the establishment of the Northwest Hawaiian Islands Coral Reef 
Ecosystem Reserve in 2000. The CWG has a permit subcommittee that 
reviews Monument permits and provides input to OHA, a Monument co-
trustee who also sits on the Monument permit working group. The 
sanctuary permitting system will complement the existing Monument 
permitting system, and was developed to allow for integration with the 
Monument permitting system, to ensure continued joint permitting 
administered by the MMB. Therefore, NOAA intends for the CWG to 
continue to provide advice and guidance on permitting for 
Papah[amacr]naumoku[amacr]kea.
    Consideration of the CWG as a co-trustee of the Monument is outside 
the scope of the action to designate a national marine sanctuary, 
because a sanctuary designation would not alter the underlying Monument 
management structure.
    61. E-10 Comment: Commenters expressed concerns regarding NOAA 
being the primary manager of the proposed sanctuary, and questioned 
what role the State of Hawai[revaps]i had in developing the proposed 
sanctuary. One commenter requested that there be a checks and balance 
system with the State of Hawai[revaps]i and Native Hawaiian groups when 
reviewing the objectives, actions, regulations, exceptions, permits, 
and penalties.
    Response: The NMSA provides authority for NOAA, among other things, 
to designate a sanctuary and promulgate regulations implementing the 
designation. Pursuant to the NMSA, states may choose to have a role in 
co-managing a sanctuary if all or part of the proposed sanctuary is 
within the territorial limits of any state. As the sanctuary includes 
state waters, NOAA will co-manage the sanctuary with the State of 
Hawai[revaps]i. NOAA establishes the framework for co-management in 
Section 922.242 of the final rule and may update existing agreements or 
develop additional agreements with the State of Hawai[revaps]i to 
clarify the terms of co-management. Any future proposed changes to 
sanctuary regulations or boundaries would be coordinated with the State 
and subject to public review as mandated by the NMSA and other Federal 
statutes.
    The State of Hawai[revaps]i also supports the sanctuary proposal. 
While NOAA was the lead Federal agency in the preparation of the EIS, 
the State of Hawai[revaps]i served as a cooperating agency and co-
developed the draft EIS and final EIS, which was also developed in 
accordance with the Hawai[revaps]i Environmental Policy Act (HEPA, 
Chapter 343 HRS, HAR Chapter 11-200.1). The State of Hawai[revaps]i 
also co-developed the sanctuary management plan.
    62. F-1 Comment: Some commenters opposed the exemption for 
``scientific exploration or research activities by or for the Secretary 
of Commerce or the Secretary of the Interior when the activity occurs 
in the Outer Sanctuary Zone.'' Commenters stated that the exemption may 
provide a loophole to permit large-scale take/extraction of resources. 
Commenters felt that the Department of Commerce and the Department of 
the Interior should still be required to obtain sanctuary permits.
    Response: Presidential Proclamation 9478, which designated the MEA, 
specifically states that the prohibitions ``shall not restrict 
scientific exploration or research activities by or for the Secretaries 
and nothing in this proclamation shall be construed to require a permit 
or other authorization from the other Secretary for their respective 
scientific activities.'' Presidential Proclamation 9478 further 
highlights the significant scientific value of the MEA and underscores 
the opportunities for research and discovery to occur in that area, 
including understanding the impacts of climate change on deep-sea 
communities and identifying new species. NOAA is exempting scientific 
exploration or research activities from the sanctuary's

[[Page 4884]]

prohibitions and permitting requirements for both the Department of 
Commerce and the Department of Interior within the Outer Sanctuary 
Zone, to be consistent with Presidential Proclamation 9478. However, 
such activities must still comply with other Federal environmental laws 
such as the NEPA, the Endangered Species Act, the NMSA section 304(d), 
and the Marine Mammal Protection Act
    63. F-2 Comment: Commenters requested that Hawaiian-focused 
research conducted by Hawaiians be prioritized by providing an 
exemption for these activities.
    Response: The sanctuary permitting system and the exemptions were 
modeled after the existing Monument permitting system. The sanctuary 
permitting system would not supplant the existing permitting system for 
the Monument and was developed to ensure a continued joint permitting 
system administered by the MMB. Therefore, rather than introducing a 
new exemption, NOAA and the State will work to prioritize Hawaiian-
focused research through other practices, as described in the draft 
sanctuary management plan (final EIS Appendix A), including:
     supporting and facilitating K[amacr]naka 
[revaps][Omacr]iwi (Native Hawaiian) access and research (Strategy 
2.6);
     weaving together multiple knowledge systems, values, 
practices, and methods, in science and research (Strategy 2.7); and
     supporting research initiatives that focus on next-
generation capacity building for leadership succession of K[amacr]naka 
[revaps][Omacr]iwi (Native Hawaiian) and Pacific Islanders who are 
severely underrepresented in STEM and ocean sciences (Strategy 2.8).
    64. F-3 Comment: Some commenters opposed the exemption for the 
activities and exercises of the U.S. Armed Forces, noting specific 
concern for military sonar activity.
    Response: The sanctuary regulations and both Presidential 
Proclamations 8031 and 9478 include a broad exemption to allow 
activities and exercises of the U.S. Armed Forces, including those 
carried out by the U.S. Coast Guard. The sanctuary regulations specify 
that all activities and exercises of the Armed Forces shall be carried 
out in a manner that avoids, to the extent practicable and consistent 
with operational requirements, adverse impacts on sanctuary resources 
and qualities. For any Federal agency actions, including actions of the 
Armed Forces that are likely to destroy, cause the loss of, or injure 
sanctuary resources, the Armed Forces must comply with the consultation 
requirements outlined in Section 304(d) of the NMSA, regardless of 
whether those actions are exempted from the sanctuary's regulations.
    65. F-4 Comment: Commenters expressed opposition to the exemption 
for non-commercial fishing activities authorized under the MSA. 
Commenters stated that non-commercial fishing permit holders should not 
have exemptions to conduct the otherwise prohibited and regulated 
activities of the sanctuary and that any non-commercial fishing 
activities should still require a separate sanctuary permit. One 
commenter stated that ONMS should promulgate regulations under the 
National Marine Sanctuaries Act as a backstop and not rely solely on 
the Magnuson-Stevens Fishery Conservation and Management Act 
application. Commenters stated that the exemption for non-commercial 
fishing is counter to Mai Ka P[omacr] Mai. Commenters also requested 
that NOAA gather more input from the Native Hawaiian community, 
including the OHA and the Native Hawaiian Cultural Working Group on 
this topic.
    Response: As required by Section 304(a)(5) of the NMSA, NOAA 
provided the WPRFMC with the opportunity to recommend any draft fishing 
regulations it deemed necessary to implement the proposed sanctuary 
designation. NOAA participated in six public meetings hosted by the 
WPRFMC on November 1st, 3rd, 4th, 5th, 8th, and 10th of 2022, which 
were focused on the development of fishing regulations for the area of 
the proposed sanctuary that overlaps with the MEA. In December 2022, 
the WPRFMC provided a recommendation for non-commercial fishing 
regulations for the area of the proposed sanctuary that overlaps with 
the MEA. NOAA accepted the majority of the WPRFMC's recommendations, as 
they were found to fulfill the purposes and policies of the NMSA and 
the goals and objectives of the proposed sanctuary designation. 
However, the WPRFMC's recommendation to provide Native Hawaiian 
subsistence practices fishing permit applicants the ability to request 
limited cost recovery by selling their catch in the permit application 
process through a statement of need for cost recovery along with 
expected costs, failed to fulfill the purposes and policies of the NMSA 
and the goals and objectives of the proposed sanctuary designation. 
Additionally, NOAA found that the allowance of ``sale'' under a Native 
Hawaiian subsistence practices fishing permit is inconsistent with the 
State's constitutional protection of Native Hawaiian traditional and 
customary rights.
    Accordingly, the sanctuary regulations proposed that prohibitions 
in paragraphs (a)(7) through (14) in Section 922.244 would not apply to 
non-commercial fishing activities in the Outer Sanctuary Zone 
authorized under the MSA, provided that no sale of harvested fish 
occurs. In response to comments of concern for this exemption, NOAA has 
made changes to ensure that a non-commercial fishing permit authorized 
under the MSA is only exempt from a limited subset of prohibited or 
otherwise regulated activities that may only be conducted as incidental 
to and necessary to a lawful non-commercial fishing activity. NOAA has 
also clarified that this narrow exemption from the sanctuary's 
permitting requirements is only applicable provided that the fish 
harvested, either in whole or in part, are neither intended to enter 
commerce nor enter commerce through sale, barter, or trade and that the 
resource is managed sustainably, consistent with Presidential 
Proclamation 9478. Moreover, consistent with the outcome of the NMSA 
Section 304(a)(5) process, for the exemption to apply, the fish 
harvested, either in whole or in part, are not intended to be sold and 
shall not be sold for any purposes, including, but not limited to, 
cost-recovery. See the final EIS, Section 3.3.1.
    NOAA is preparing a separate proposed rule for regulations 
governing fishing in the MEA under the authority of the MSA, and will 
accept public comment on the proposal. NOAA and the State of 
Hawai[revaps]i encourage the commenter to participate in the future 
public review process for the proposed rule and any associated NEPA 
and/or other environmental compliance documentation for non-commercial 
fishing regulations in the MEA. Until a public process is conducted, 
and a final rule is issued for fishing regulations under the authority 
of the MSA, non-commercial fishing permits will not be issued for the 
MEA/Outer Sanctuary Zone. Consistent with existing Monument management, 
the sanctuary may authorize sustenance fishing outside of any special 
preservation area as a term or condition of any sanctuary permit.
    66. F-5 Comment: Commenters requested a prohibition on mining, and/
or stating opposition to mining activities, or any exemption allowing 
them.
    Response: Consistent with the presidential proclamations 
establishing the Monument, NOAA will prohibit exploring for, 
developing, or producing

[[Page 4885]]

oil, gas, or minerals to protect sanctuary resources. NOAA will also 
prohibit ``any energy development activities'' to further the 
underlying intent of the prohibition on oil, gas, and mineral 
development by accounting for technological advances in other forms of 
energy development. Likewise, NOAA is not providing an exemption for 
mining activities.
    67. F-6 Comment: A commenter stated that scientific or management 
activities undertaken by the USFWS within the Monument are not subject 
to any additional sanctuary requirements or authorization from NOAA.
    Response: Nothing in the establishment of the national marine 
sanctuary will diminish USFWS's authority to administer Midway Atoll 
National Wildlife Refuge and Hawaiian Islands National Wildlife Refuge 
under the National Wildlife Refuge System Administration Act. Where 
Papah[amacr]naumoku[amacr]kea National Marine Sanctuary overlays Midway 
Atoll National Wildlife Refuge and Hawaiian Islands National Wildlife 
Refuge, NOAA will implement the National Marine Sanctuaries Act to 
provide supplemental authority to protect resources. In other sanctuary 
sites when there is jurisdictional overlap between NOAA and USFWS, the 
agencies have worked to implement their respective authorities in a 
manner that complements, but does not diminish or interfere with, 
existing authorities and would strengthen existing protections and 
management. NOAA and USFWS are developing an agreement to provide 
details on the execution of sanctuary management where the national 
marine sanctuary overlaps with Midway Atoll National Wildlife Refuge 
and Hawaiian Islands National Wildlife Refuge.
    The sanctuary permitting system was modeled after the existing 
Monument permitting system to ensure a single joint permitting system 
continues to be administered by the MMB. In addition, this final rule 
does not include authorization authority for the sanctuary. Consistent 
with Presidential Proclamation 9478, the sanctuary regulations exempt 
both the DOC/NOAA and the DOI/USFWS from the prohibitions, including 
the need to obtain a permit or authorization from the Secretary of 
Commerce in order to conduct scientific exploration or research 
activities in the MEA. NOAA has clarified the proposed framework for 
management and permitting in partnership with USFWS and the other 
Monument managers in the final EIS, Section 3.3.1.
    68. G-1 Comment: Some commenters requested an extension of the 
public comment period and/or additional virtual public meetings. Some 
commenters expressed concern that there was not adequate public 
education, engagement, and notification for the public comment period 
and meetings; that the methods for comment were not accessible for all 
and/or not an adequate way to gauge support or opposition; and that all 
communities, specifically the fishing community, were not properly 
engaged in the comment period. One commenter expressed concern that the 
public meetings did not allow for agency responses or answers to oral 
testimony and requested that the NOAA website provide responses to 
frequently asked questions from the public meetings.
    Response: NOAA followed the designation processes and procedures as 
required pursuant to the NMSA and NEPA, both of which require broad 
public participation, as well as the Administrative Procedure Act's 
notice requirements. The public comment period took place over the 
course of 68 days from March 1 to May 7, 2024. NOAA accepted public 
comments through the Federal eRulemaking Portal and by traditional 
mail. NOAA also encouraged public comments in both English and 
[revaps][Omacr]lelo Hawai[revaps]i (Hawaiian language). NOAA and the 
State held 11 public comment meetings (nine in-person and two virtual). 
Additionally, prior to the public comment meetings, the State of 
Hawai[revaps]i Division of Aquatic Resources held a virtual public 
informational meeting to engage the public. NOAA and the State of 
Hawai[revaps]i provided question and answer sessions at the in-person 
public meetings, prior to and following the formal oral comment portion 
of the meeting.
    NOAA also posted sanctuary designation process information and FAQs 
on the ONMS website in response to questions received during public 
meetings. NOAA believes that it has fairly engaged with and considered 
input from local communities, K[amacr]naka [revaps][Omacr]iwi, 
government, and other stakeholders through extensive consultations, 
meetings, and discussions about sanctuary designation, and that draft 
designation documents and process steps have complied with applicable 
laws and policies, including the NMSA, NEPA, Administrative Procedure 
Act, and Section 106 of the National Historic Preservation Act. For 
more details regarding the public engagement process, see the final 
EIS, sections 1.3.1 and 1.3.2.
    NOAA also specifically engaged with the fishing community and 
consulted with the WPRFMC as required by Section 304(a)(5) of the NMSA. 
Through this consultation, NOAA provided the WPRFMC with the 
opportunity to recommend any draft fishing regulations it deemed 
necessary to implement the proposed sanctuary designation. NOAA and the 
State of Hawai[revaps]i also participated in six public meetings hosted 
by the WPRFMC on November 1st, 3rd, 4th, 5th, 8th, and 10th of 2022, 
which were focused on the development of fishing regulations for the 
area of the proposed sanctuary that overlaps with the MEA.
    69. H-2 Comment: A commenter recommended that, in describing the 
purposes and policies of the NMSA, and specifically, 16 U.S.C 1431 
(b)(4), NOAA should define ``sustainable use'' as ``to provide enhanced 
protections for pristine marine waters,'' and prohibit use of the 
waters or marine ecosystems.
    Response: The NMSA authorizes the Secretary of Commerce to 
designate national marine sanctuaries that meet the purposes and 
policies of the NMSA, including 16 U.S.C. 1431(b)(4), which focuses, in 
part, on the sustainable use of the marine environment. The sanctuary 
regulations build upon the existing protections for the Northwestern 
Hawaiian Islands, which provide for both restricted access to the area 
and responsible use subject to strict permitting terms and conditions. 
Given this management model, NOAA does not see a need for the sanctuary 
regulations to define ``sustainable use'' at this time.
    70. I-1 Comment: Some commenters recommended that NOAA select 
Alternative 3, a boundary which excludes the waters of Midway Atoll and 
Hawaiian Islands National Wildlife Refuges. Commenters provided several 
reasons for supporting Alternative 3, including that the USFWS should 
have sole jurisdiction to manage the national wildlife refuges; that a 
sanctuary that overlaps with the national wildlife refuges would be 
inconsistent with presidential proclamations that created the Monument; 
that a sanctuary that overlaps with the national wildlife refuges would 
not comply with the National Wildlife Refuge System Administration Act; 
and that a sanctuary that overlaps with the national wildlife refuges 
may negatively impact the USFWS management of the national wildlife 
refuges.
    Response: NOAA identified Alternative 1 (which would include the 
waters of Midway Atoll and Hawaiian Islands National Wildlife Refuges 
in the proposed sanctuary) as the Agency-Preferred Alternative based on 
its comparative merits. Nothing in the establishment of the national 
marine

[[Page 4886]]

sanctuary will diminish USFWS's authority to administer Midway Atoll 
National Wildlife Refuge and Hawaiian Islands National Wildlife Refuge 
under the National Wildlife Refuge System Administration Act. Where 
Papah[amacr]naumoku[amacr]kea National Marine Sanctuary overlays Midway 
Atoll National Wildlife Refuge and Hawaiian Islands National Wildlife 
Refuge, NOAA will implement the NMSA to provide supplemental authority 
to protect resources. NOAA and USFWS are developing an agreement to 
provide details on the execution of sanctuary management where the 
national marine sanctuary overlaps with Midway Atoll National Wildlife 
Refuge and Hawaiian Islands National Wildlife Refuge.
    In addition, the existing Monument is already jointly administered 
through a seven-member Monument Management Board, which includes NOAA's 
ONMS. ONMS and the USFWS have been cooperatively managing the area of 
the proposed sanctuary for nearly 20 years. As a result of the existing 
Monument management framework, of which ONMS is a critical part, this 
sanctuary rule has been specifically designed not to create any 
regulatory inconsistencies, and to ensure consistent management between 
the Monument, the national wildlife refuges, and the sanctuary.
    Further, both NOAA and the State disagree that the designation is 
inconsistent with the directives that established the Northwestern 
Hawaiian Islands Coral Reef Ecosystem Reserve and the Monument. In 
part, the purpose of the designation is to specifically implement the 
provisions of Executive Order 13178, Presidential Proclamation 9478, 
and the Joint Explanatory Statement accompanying the Consolidated 
Appropriations Act, 2021, that directed NOAA to consider initiating the 
sanctuary designation process.
    71. I-2 Comment: Commenters expressed opposition to any sanctuary 
that would include additional portions of Middle Bank, beyond the areas 
that are included in the Monument.
    Response: NOAA considered designating a sanctuary that expanded 
beyond the southeastern portion of the Monument boundary to include 
Middle Bank. However, NOAA eliminated this alternative from detailed 
study, as described in the draft and final EIS, Section 3.7.
    72. I-3 Comment: Commenters requested that NOAA consider including 
most or all of Middle Bank in the proposed sanctuary boundary, because 
of the scientific, ecological, and commercial benefits of the area. 
Commenters also requested that NOAA consider expanding the boundary to 
include more area.
    Response: NOAA identified Alternative 1 (which is coextensive with 
marine portions of the Monument) as the Agency-Preferred Alternative 
based on its comparative merits, and therefore does not include all of 
Middle Bank or any additional areas that are not part of the Monument. 
This is consistent with the defined purpose and need and with the 
provisions of Executive Order 13178, Presidential Proclamation 8031, 
Presidential Proclamation 9478, and the Joint Explanatory Statement 
accompanying the Consolidated Appropriations Act, 2021.
    Although NOAA considered sanctuary boundary alternatives that 
included Middle Bank, NOAA concluded that aligning the boundary of the 
sanctuary with that of the Monument best fulfills the purposes and 
policies of the NMSA. In addition, the NMSA directs NOAA that it may 
designate any discrete area of the marine environment as a national 
marine sanctuary and promulgate regulations implementing the 
designation if it is determined that the area is of a size and nature 
that will permit comprehensive and coordinated conservation and 
management. NOAA concluded that any boundary alternative that expands 
beyond the existing boundaries of PMNM and the MEA would not be 
practicable in light of the need for comprehensive and coordinated 
management in a manner which complements the existing Monument 
management framework. NOAA has added these clarifications to the draft 
and final EIS, Section 3.7.1.
    73. I-4 Comment: Commenters recommended Alternative 2, a boundary 
which excludes the MEA, as the preferred alternative. Some commenters 
expressed support for this alternative, emphasizing that excluding the 
MEA may allow for more fishing, including commercial fishing, in that 
area.
    Response: NOAA identified Alternative 1 as the Agency-Preferred 
Alternative, which includes the MEA, based on its comparative merits. 
This final rule implements and is consistent with directives in 
Presidential Proclamation 9478, which has the force of law. 
Presidential Proclamation 9478, which designated the MEA, prohibits 
commercial fishing and provides that non-commercial fishing may be a 
regulated activity (i.e., allowed only with a permit). Selection of 
Alternative 2 would not alter the directives provided in Presidential 
Proclamation 9478, including the prohibition on commercial fishing in 
the MEA.
    74. I-5 Comment: A commenter requested the inclusion of a legal 
definition of shoreline delineation in relation to iron seawall ruins 
and rubble at Tern Island, and questioned if the seawall and debris 
would be included in the sanctuary boundary.
    Response: The shoreline in the State of Hawai[revaps]i as defined 
by the Hawai[revaps]i Department of Land and Natural Resources is ``the 
upper reaches of the wash of the waves, other than storm or seismic 
waves, at high tide during the season of the year in which the highest 
wash of the waves occur, usually evidenced by the edge of vegetation 
growth, or the upper limit of debris left by the wash of the waves'' 
(HAR Sec.  13-222). The Coastal Lands Program of the Hawai[revaps]i 
Department of Land and Natural Resources, Office of Conservation and 
Coastal Lands maintains the State of Hawaii Shoreline Certification 
Program (see Shoreline Certification Rules in HAR Sec.  13-222). It is 
this program that would determine where the shoreline is delineated in 
the location of the iron seawall on Tern Island when necessary. 
Therefore, under the current definitions, any debris or rubble or 
portion of the Tern Island iron seawall that occurs seaward of this 
shoreline as defined by the State of Hawai[revaps]i will be within the 
sanctuary, and that which occurs upland of the shoreline will be 
outside the sanctuary.
    75. I-6 Comment: A commenter requested that the shoreward boundary 
be extended to the mean high tide.
    Response: NOAA considered an alternative that designated the mean 
high tide line as the shoreward boundary, but eliminated this 
alternative from detailed study (see Section 3.7.1 of the EIS). NOAA 
typically uses the shoreline as legally defined by the State within 
which the national marine sanctuary occurs, because the shoreline 
delineates the boundary between public and private land. The shoreline 
in the State of Hawai[revaps]i as defined by the Hawai[revaps]i 
Department of Land and Natural Resources is ``the upper reaches of the 
wash of the waves, other than storm or seismic waves, at high tide 
during the season of the year in which the highest wash of the waves 
occur, usually evidenced by the edge of vegetation growth, or the upper 
limit of debris left by the wash of the waves'' (HAR Sec.  13-222). 
NOAA strives to designate a sanctuary which supplements and complements 
existing authorities, and this designation adheres to both the State's 
definition as well as the current landward boundary designation of the 
Monument.

[[Page 4887]]

    76. J-12 Comment: Commenters expressed concerns regarding the lack 
of analysis and description on NOAA's ability to issue ``emergency 
regulations'' to prevent or minimize the loss or injury to a sanctuary 
resource. The commenter stated that the regulations issued jointly by 
NOAA and USFWS in 2006 for the original Monument contain an exemption 
from prohibitions for emergency actions, and that Presidential 
Proclamation 9478 specifically exempts from prohibitions activities 
``necessary to respond to emergencies threatening life, property, or 
the environment, or to activities necessary for law enforcement 
purposes.'' The commenters questioned why sanctuary authority to issue 
sanctuary regulations is necessary given existing provisions and 
regulations for the Monument.
    Response: NOAA acknowledges that the existing management of the 
area includes exemptions for any activity necessary to respond to 
emergencies that threaten life, property, or the environment, or to 
activities necessary for law enforcement purposes. These exemptions are 
also included in the sanctuary regulations. However, NOAA's references 
to ``emergency regulations'' throughout the EIS are not referring to 
this exemption, but to NOAA's authority pursuant to 15 CFR 922.7, which 
states that ``where necessary to prevent or minimize the destruction 
of, loss of, or injury to a Sanctuary resource or quality, or minimize 
the imminent risk of such destruction, loss, or injury, any and all 
such activities are subject to immediate temporary regulation, 
including prohibition.'' This authority may be useful in implementing 
immediate temporary regulations to protect resources following 
incidents of resource damages, such as vessel groundings or disease. 
NOAA has added information regarding emergency regulations in the final 
rule, Section IV.O.
    77. K-6 Comment: Commenters suggested that scientific research 
should not be conducted in a way that would harm resources. Commenters 
also expressed concerns about the use of remotely operated vehicles 
(ROVs) and other scientific instruments on the seafloor.
    Response: The sanctuary includes a permitting system modeled after 
the existing Monument permitting system, such that there are sufficient 
safeguards in place that apply to the permit review process for all 
activities, including for scientific research and ROVs. The sanctuary 
has adopted the same permit criteria as currently required for Monument 
permits, including that the proposed activity will be conducted in a 
manner compatible with resource protection. In addition, conditions can 
be placed on the permit specific to the activity being permitted and 
permit applications would be reviewed with respect to all other 
pertinent regulations and statutes, including NEPA, 42 U.S.C. 4321 et 
seq., and any required consultations, permits, or authorizations.
    78. K-8 Comment: A commenter suggested that NOAA leave Battle of 
Midway vessels and aircraft undisturbed to be respectful of the war and 
preserve the materials for future archaeological purposes.
    Response: NOAA's management principles emphasize an in-situ 
management approach for the long-term protection of site information 
and integrity, as well as other preservation methods and activities 
outlined in the ONMS policy guidance document Monitoring and Management 
of Tangible Maritime Heritage Resources. The Sunken Military Craft Act 
of 2004 preserves and protects all sunken military craft that are owned 
by the U.S. government, as well as foreign sunken military craft that 
lie within U.S. waters, from unauthorized disturbances.
    79. K-10: Commenters expressed concerns regarding the impacts of 
sonar activity and underwater detonations to marine mammals, fish, sea 
turtles, and sea invertebrates. Commenters specifically expressed 
concern with impacts from sonar activity and testing by the military. 
One commenter recommended mid-frequency active sonar as an alternative 
technology.
    Response: Consistent with the presidential proclamations 
establishing the Monument, NOAA will prohibit ``using or attempting to 
use poisons, electrical charges, or explosives in the collection or 
harvest of a sanctuary resource.'' NOAA will also prohibit, unless 
conducted pursuant to a permit ``removing, moving, taking, harvesting, 
possessing, injuring, disturbing, or damaging; or attempting to remove, 
move, take, harvest, possess, injure, disturb, or damage any living or 
nonliving sanctuary resource.'' The use of sonar by U.S. Armed Forces 
is a lawful Armed Forces activity and the use has been analyzed by the 
U.S Navy within prior environmental planning documents (HSTT, 2018) and 
is subject to other applicable laws, permits, and authorizations, 
including the MMPA.
    NOAA provides a broad exemption to allow activities and exercises 
of the U.S. Armed Forces, including those carried out by the U.S. Coast 
Guard, to be consistent with existing management of this area, as 
provided for the Monument by Presidential Proclamations 8031 and 9478. 
However, all activities and exercises of the Armed Forces shall be 
carried out in a manner that avoids, to the extent practicable and 
consistent with operational requirements, adverse impacts on sanctuary 
resources and qualities. See also the F.3 response.
    80. K-11 Comment: A commenter recommended protections for 
kohol[amacr] (humpback whale) that are similar to the protections 
included in Hawaiian Islands Humpback Whale National Marine Sanctuary, 
including vessel rules, restrictions on sonar, and maintaining a 
minimum distance away from kohol[amacr].
    Response: NOAA will prohibit several activities in the sanctuary 
that are responsive to this comment, consistent with the presidential 
proclamations establishing the Monument. The prohibitions most relevant 
for the protection of humpback whales include prohibitions on 
``removing, moving, taking, harvesting, possessing, injuring, 
disturbing, or damaging; or attempting to remove, move, take, harvest, 
possess, injure, disturb, or damage any living or nonliving sanctuary 
resource'' and ``attracting any living sanctuary resource.'' The use of 
sonar by the U.S. Armed Forces is a lawful activity of the Armed 
Forces, but is subject to other applicable laws, permits, and 
authorizations, including the MMPA.
    81. K-12 Comment: A commenter requested that the Outer Sanctuary 
Zone be named ``pu[revaps]uhonua,'' which means a place of safety and 
refuge. Another commenter asked if there would be a process for naming 
this area of the sanctuary.
    Response: NOAA will give further consideration to this and would 
like to ensure an inclusive process that allows for additional input 
and discussion from all stakeholders and Monument co-trustees regarding 
a name for the Outer Sanctuary Zone. The proposed name and the process 
of naming this Outer Sanctuary Zone will be discussed within the 
Papah[amacr]naumoku[amacr]kea Native Hawaiian CWG, facilitated by OHA.
    82. L-5 Comment: A commenter requested that the rule language be 
revised to allow for an ongoing process for updating the sanctuary 
regulations. Specifically, the commenter suggested replacing the words 
``as may be necessary,'' in the Terms of Designation, Activities 
Subject to Regulation section, with ``on an ongoing basis.''
    Response: The terms of designation, as defined under section 
304(a)(4) of the NMSA, may be modified only by the same procedures by 
which the original designation is made, including public hearings, 
consultations with interested

[[Page 4888]]

Federal, Tribal, State, regional, and local authorities and agencies, 
review by the appropriate Congressional committees, and approval by the 
Secretary of Commerce, or his or her designee. Any future proposed 
changes to sanctuary regulations or boundaries would be subject to 
public review as mandated by the NMSA and other Federal statutes.
    83. L-6 Comment: A commenter provided questions and suggestions 
regarding perceived data anomalies in the boundary description, 
including:
     ``The proposed SMA and SPA boundaries do not coincide with 
the boundaries as described in Presidential Proclamation 8031 nor do 
they coincide with the proclamation's SMA and certain SPA boundaries as 
charted on ENCs that are larger scale than Band 2 (General Navigational 
Purpose). It appears that the coordinates of the proposed boundaries 
may have been derived from the SMA and SPA boundaries of the national 
monument as depicted on the Band 2 ENCs.
     Appendix A to Subpart W, Points 610-662--
Papah[amacr]naumoku[amacr]kea National Marine Sanctuary Boundary: 
Points 610 through 662 form the easternmost extent of the proposed 
sanctuary boundary. However, these points are coincident with a portion 
of the Inner Reporting Area Boundary Around Nihoa ATBA. Should Points 
610 through 662 be coincident with the Reporting Area Outer Boundary 
instead of the Inner Reporting Area Boundary?
     Pages 15302-15303, Appendix D to Subpart W--Unnamed, 
unnumbered table: ONMS did not designate a table number and name for 
the first set of coordinates that encompasses Kure Atoll.
     Pages 15306-15307, Appendix E to Subpart W, Table 1--Ship 
Reporting Area (Reporting Area Outer Boundary): According to FR page 
15278, Column 1: ``NOAA proposes to establish this reporting area, 
which would be defined as ``the area of the proposed sanctuary that 
extends outward ten nautical miles from the PSSA [Particularly 
Sensitive Sea Area] boundary, as designated by the IMO. . .'' The 
coordinates for the Reporting Area Outer Boundary of Appendix E/Table 1 
do not completely coincide with a 10-NM buffer (geodesic) from the PSSA 
boundary per the International Maritime Organization (IMO). I recommend 
a re-evaluation of the boundary points for the Reporting Area Outer 
Boundary.''
    Response: The boundary discrepancies in the special management area 
and special preservation areas have been corrected and the updated 
coordinate tables, appended to this final rule, will correspond to the 
coordinates as described in Presidential Proclamation 8031.
    Regarding the outer boundary of the Reporting Area, NOAA will 
define the Reporting Area as was defined by IMO Resolution MSC.171(57) 
and the subsequent amendment IMO Resolution MSC.279(85) adopted in 
December 2008. This boundary has been corrected and is now described 
citing the geographic coordinates of the outer boundary of the 
``CORALSHIPREP'' reporting area of IMO Resolution MSC.279(85).
    Regarding the missing designation of a table number and name for 
the first set of coordinates that encompass the Kure Atoll Special 
Preservation Area, after investigating the issue, NOAA determined that 
the table did in fact have a name and number as referenced at the web 
address and therefore no corrective action was necessary.
    Regarding the portion of the proposed sanctuary boundary identified 
as being coincident with the Inner Ship Reporting Area Boundary around 
the Nihoa Area to be Avoided, NOAA determined that this portion of the 
boundary was the same as that used for both the original and expanded 
marine national monument, and intends that it will also be used for 
this portion of the national marine sanctuary boundary. Therefore, no 
edits were necessary.

VI. Classification

A. National Marine Sanctuaries Act

    NOAA consulted with the WPRFMC as required by section 304(a)(5) of 
the NMSA. Through this consultation, NOAA provided the WPRFMC with the 
opportunity to recommend any draft fishing regulations it deemed 
necessary to implement the proposed sanctuary designation. NOAA 
initiated the consultation on November 19, 2021. On March 22, 2022, the 
WPRFMC agreed to develop draft fishing regulations for the proposed 
sanctuary. NOAA participated in six public meetings hosted by the 
WPRFMC on November 1st, 3rd, 4th, 5th, 8th, and 10th of 2022, which 
were focused on the development of fishing regulations for the area of 
the proposed sanctuary that overlaps with the MEA. At its 193rd meeting 
in December of 2022, the WPRFMC provided a final recommendation. NOAA 
found that the final recommendation, in part, did not fulfill the 
purposes and policies of the NMSA and the goals and objectives of the 
proposed designation. The WPRFMC amended their recommendation during 
their 194th meeting in March of 2023, and submitted a revised final 
recommendation to NOAA on April 14, 2023.
    In May of 2023, NOAA accepted the majority of the WPRFMC's 
recommendation as it fulfilled the purposes and policies of the NMSA 
and the goals and objectives of the proposed sanctuary designation. 
However, the WPRFMC's recommendation for the disposition of Native 
Hawaiian Subsistence Practices Fishing catch, which would provide 
permit applicants the ability to request limited cost-recovery by 
selling their catch, was rejected by NOAA in a decision letter dated 
May 31, 2023. As NOAA explained in the letter, any recommendation for 
the allowance of ``sale'' is inconsistent with the goals and objectives 
of the proposed sanctuary designation. To reflect the outcome of the 
NMSA 304(a)(5) process, NOAA has prepared this final rule under the 
NMSA, and is preparing a separate proposed rule for regulations 
governing fishing in the MEA under the authority of the MSA.
    Pursuant to section 304(a)(1)(C) of the NMSA, the Committee on 
Natural Resources of the House of Representatives, the Committee on 
Commerce, Science, and Transportation of the Senate, and the Governor 
of Hawai[revaps]i will have the opportunity to review this final 
action.

B. National Environmental Policy Act

    As described in Section I above, NOAA and the State of 
Hawai[revaps]i prepared a final EIS to evaluate the impacts of 
designating a national marine sanctuary, which considered four 
alternatives for the designation of a national marine sanctuary in 
marine portions of the Monument. Copies of the final EIS, final 
management plan, and Record of Decision are available at the website 
listed in the ADDRESSES section of this final rule.

C. Executive Orders 12866: Regulatory Impact, 13563 Improving 
Regulation and Regulatory Review, and 14094: Modernizing Regulatory 
Review

    The Office of Management and Budget (OMB) has determined this final 
rule to be significant under Executive Order 12866, ``Regulatory 
Planning and Review,'' 58 FR 190 (Oct 4, 1993), as supplemented by 
Executive Order 14094, ``Modernizing Regulatory Review,'' 88 FR 21879 
(April 6, 2023). NOAA prepared an analysis of the potential costs and 
benefits associated with this action, which is available at https://sanctuaries.noaa.gov/papahanaumokuakea/.
    The final rule is largely consistent with the existing management

[[Page 4889]]

framework for the Monument. Because the site-specific regulations 
finalized under the NMSA have been crafted to ensure consistency with 
Presidential Proclamations 8031, 8112, and 9478, the overall management 
framework for the area will largely remain unchanged. The designation 
would clarify aspects of existing Monument management and add to that 
management framework in ways that would have a limited effect on the 
public given that access to and activity within the Monument is already 
highly regulated and requires a permit in most instances. In most 
cases, permit applicants would be subject to substantially similar 
findings criteria and permitting requirements as currently required 
within the Monument. Further, the area of the sanctuary is extremely 
remote, nearly 300 miles at its closest point from the main Hawaiian 
Islands, and very few entities operate there. Limited activities are 
expected to continue. Therefore, the quantifiable benefits and costs 
associated with the site-specific regulations are limited. The primary 
benefits of sanctuary designation are provided by the supplemental 
authorities provided through the NMSA and National Marine Sanctuary 
Program regulations.

D. Executive Order 13132: Federalism Assessment

    NOAA has concluded that this regulatory action does not have 
federalism implications sufficient to warrant preparation of a 
federalism assessment under Executive Order 13132 because NOAA 
supplements and complements State and local laws under the NMSA rather 
than supersedes or conflicts with them. This final rule will not have 
substantial direct effects on State or local governments. NOAA has 
coordinated closely with State partners throughout the development of 
this final rule and, where applicable and practicable, the final rule 
aligns with existing State regulations. In addition, the State of 
Hawai[revaps]i served as a cooperating agency and co-developed the 
draft EIS and final EIS, which was also developed in accordance with 
the Hawai[revaps]i Environmental Policy Act (HEPA, Chapter 343 HRS, HAR 
Chapter 11-200.1). The State of Hawai[revaps]i also co-developed the 
sanctuary management plan. NOAA has aimed for consistent regulations 
throughout sanctuary waters including those within State and Federal 
jurisdiction.

E. Regulatory Flexibility Act

    The Regulatory Flexibility Act (RFA; 5 U.S.C. 601 et seq.) requires 
Federal agencies to prepare an analysis of a rule's impact on small 
entities whenever the agency is required to publish a rulemaking, 
unless the agency certifies, pursuant to 5 U.S.C. 605, that the action 
will not have significant economic impact on a substantial number of 
small entities. The RFA requires agencies to consider, but not 
necessarily minimize, the effects of rules on small entities. The goal 
of the RFA is to inform the agency and public of expected economic 
effects of the rule and to ensure the agency considers alternatives 
that minimize the expected economic effects on small entities while 
meeting applicable goals and objectives. Pursuant to section 605(b) of 
the RFA, the Chief Counsel for Regulation of the Department of Commerce 
certified to the Chief Counsel for Advocacy of the Small Business 
Administration that the proposed rule would not have a significant 
economic impact on a substantial number of small entities. The purpose, 
context, and statutory basis for this action is described above and not 
repeated here. The rationale for that certification was set forth in 
the preamble of the proposed rule (89 FR 15272, March 1, 2024), and 
NOAA's analysis stands.
    This final rule is not expected to place a substantial number of 
small entities at a significant competitive disadvantage to large 
entities, and would not significantly reduce profits for a substantial 
number of small entities operating in the area of the sanctuary, as the 
overall management framework for the area will largely remain 
unchanged. The final rule would be largely consistent with the existing 
management framework for the Monument, which was established by 
Presidential Proclamation 8031 and 8112 (PMNM, 0-50 nm), and by 
Presidential Proclamation 9478 (MEA, 50-200 nm). The existing 
management framework established by these Presidential Proclamations 
has the force of law, and includes a permitting system, under which all 
entities are subject to the same reporting requirements. Further, very 
few entities operate in the area of the sanctuary, as the area of the 
sanctuary is extremely remote, nearly 300 miles at its closest point 
from the main Hawaiian Islands. The number of permits issued for the 
Monument annually ranged from 9 to 21 between 2018 and 2022.
    Through this final rule, permit applicants, including applicants 
for activities in the area of the sanctuary that overlaps with the MEA, 
would be subject to substantially similar findings criteria and 
permitting requirements as currently required for PMNM. Based on the 
NOAA Monument manager's site knowledge and experience, the final rule 
is not expected to result in an increase in the number of permit 
requests, as the majority of users operate in the area of the sanctuary 
that overlaps with PMNM, and do not solely operate in the area of the 
sanctuary that overlaps with the MEA. Therefore, these additional 
permitting requirements will not significantly reduce profits for a 
substantial number of small entities because most entities are already 
subject to such requirements.
    NOAA does not charge a fee for review and issuance of general 
permits, and there are minimal, indirect costs associated with the time 
for an individual to complete a permit application and respond to any 
follow-up questions from NOAA. While NOAA may assess fees for the 
conduct of any activity authorized under a special use permit, fees are 
not required and decisions are made on a case-by-case basis. No unique 
professional skills are necessary to meet these reporting requirements.
    Although NOAA has made minor technical changes and clarifications 
to the regulations from the proposed rule to the final rule, none of 
the changes alter the initial determination that this rule will not 
have a significant impact on a substantial number of small entities. 
NOAA also did not receive any comments relevant to the analysis or 
conclusions of this determination. Therefore, the determination that 
this rule will not have a significant economic impact on a substantial 
number of small entities remains unchanged. As a result, a final 
regulatory flexibility analysis was not required and none was prepared.

F. Paperwork Reduction Act

    Notwithstanding any other provisions of the law, no person is 
required to respond to, nor shall any person be subject to a penalty 
for failure to comply with a collection of information subject to the 
requirements of the Paperwork Reduction Act (PRA), 44 U.S.C. 3501 et 
seq., unless that collection of information displays a currently valid 
OMB control number. NOAA plans to use an existing collection, 
Papah[acirc]naumoku[acirc]kea Marine National Monument Permit 
Applications and Reports for Permits, currently approved under OMB 
Control Number 0648-0548 in association with this final rule. This 
information collection is currently used to determine whether to 
approve or deny a permit application for the 
Papah[amacr]naumoku[amacr]kea Marine National Monument. Information 
collected includes such items as the professional qualifications and 
financial ability of the applicant (as related to the requested

[[Page 4890]]

activity); the duration of the activity and its effects; the 
appropriateness of the methods and procedures proposed by the applicant 
for the conduct of the activity; and the extent to which the conduct of 
the activity may diminish or enhance the qualities for which the 
Monument was designated. Some of the information collected may also be 
used to inform management actions or decision making after a final 
decision has been made. Additional information regarding this 
collection of information--including all background materials--can be 
found at https://www.reginfo.gov/public/do/PRAMain by using the search 
function to enter either the title of the collection or the OMB Control 
Number.
    NOAA believes designating a national marine sanctuary in the marine 
portions of the Monument will not result in a significant change to the 
burden, reporting, recordkeeping, and other compliance requirements as 
discussed in the preamble of the rule. To the extent compliance with 
this final rule would impose a burden on persons, including small 
businesses, NOAA believes this burden will be minimal. NOAA did not 
receive any comments in response to this determination at the proposed 
rule stage. Following sanctuary designation, NOAA may elect to re-visit 
the current collection to determine if additional changes are needed. 
Should NOAA, in consultation with the Department of Interior, the State 
of Hawaii, and the Office of Hawaiian Affairs, believe additional 
changes are needed to better facilitate implementation of sanctuary 
permitting and reporting, NOAA will publish a 60 day notice announcing 
potential revisions for public comment before submitting materials to 
OMB.

G. National Historic Preservation Act

    Section 106 of the National Historic Preservation Act (NHPA, 54 
U.S.C. 306108) requires Federal agencies to take into account the 
effects of their undertakings on historic properties and afford the 
Advisory Council on Historic Preservation (ACHP) the opportunity to 
comment with regard to the undertaking. ``Historic property'' means any 
prehistoric or historic district, site, building, structure, or object 
included in or eligible for inclusion in the National Register of 
Historic Places maintained by the Secretary of the Interior. This term 
includes artifacts, records, and material remains that are related to 
and located within such properties, including properties of traditional 
religious and cultural importance to an Indigenous nation or Tribe or 
Native Hawaiian organization (see 36 CFR 800.16(l)).
    The regulations implementing section 106 of the NHPA (36 CFR part 
800) establish a process requiring Federal agencies to: (1) determine 
whether the undertaking is a type of activity that could affect 
historic properties; (2) identify historic properties in the area of 
potential effects; (3) assess potential adverse effects; and (4) 
resolve adverse effects. The regulations require that Federal agencies 
consult with States, Tribes, and other interested parties when making 
their effect determinations.
    NOAA has determined that the designation of a national marine 
sanctuary and related rulemaking for sanctuary-specific regulations 
meet the definition of an undertaking as defined at Sec.  800.16(y). In 
fulfilling its responsibilities under section 106 of the NHPA, NOAA 
initiated consultation with the Hawai[revaps]i State Historic 
Preservation Division through the Hawai[revaps]i Cultural Resource 
Information System on November 21, 2021. NOAA also invited the Advisory 
Council on Historic Preservation (ACHP) to participate on November 21, 
2021. NOAA further initiated an effort to identify consulting parties 
to participate in the Section 106 process through distribution of over 
500 letters to individuals, organizations, and families. This included 
outreach to families with lineal and cultural connections to 
Papah[amacr]naumoku[amacr]kea, cultural practitioners, Native Hawaiian 
Organizations, the fishing community (including subsistence, 
recreational, and commercial fishers), maritime heritage organizations, 
government agencies, and others. These letters solicited input 
regarding the identification of, and potential effects on, historic 
properties from the proposed sanctuary designation for the purpose of 
obtaining input for the Section 106 review and to additionally 
determine their interest in participating as a consulting party. 
Through this process NOAA identified 31 consulting parties.
    NOAA subsequently hosted ten Section 106 consultation meetings with 
the consulting parties. Through these consultation meetings, NOAA 
further sought to invite consulting party and public input regarding 
the identification of, and potential effects on, historic properties 
from the proposed sanctuary designation. Subsequently, pursuant to 36 
CFR 800.4(d)(1) NOAA issued a Finding of No Historic Properties 
Affected for this undertaking (see final EIS Appendix C). The 
consulting parties have been notified of the finding and the finding 
was provided to the Hawai[revaps]i State Historic Preservation Division 
for concurrence.
    As the draft EIS was a joint Federal-State action, the State also 
prepared a Cultural Impact Assessment and Legal Analysis pursuant to 
the Hawai[revaps]i Environmental Policy Act, Hawai[revaps]i Revised 
Statutes (HRS) section 343, the corresponding Hawai[revaps]i 
Administrative Rules (HAR) section 11-200.1, and the Environmental 
Council's 1997 Guidelines for Assessing Cultural Impacts. Pursuant to 
HRS Sec.  6E-8 and HAR Sec.  13-275-3, the Hawai[revaps]i Department of 
Land and Natural Resources (DLNR) submitted a written request to the 
State Historic Preservation Division (SHPD) for an agency determination 
letter. On June 7, 2024, SHPD concurred with DLNR's determination of no 
historic properties affected. The concurrence letter from the State 
Historic Preservation Division is available at https://sanctuaries.noaa.gov/papahanaumokuakea/.

H. Sunken Military Craft Act

    The Sunken Military Craft Act of 2004 (SMCA; Pub. L. 108-375, Title 
XIV, sections 1401 to 1408; 10 U.S.C. 113 note) preserves and protects 
from unauthorized disturbance all sunken military craft that are owned 
by the United States government, as well as foreign sunken military 
craft that lie within United States waters, as defined in the SMCA. 
Thousands of U.S. sunken military craft lie in waters around the world, 
many accessible to looters, treasure hunters, and others who may cause 
damage to them. These craft, and their associated contents, represent a 
collection of non-renewable and significant historical resources that 
often serve as war graves, carry unexploded ordnance, and contain oil 
and other hazardous materials. By protecting sunken military craft, the 
SMCA helps reduce the potential for irreversible harm to these 
nationally important historical and cultural resources.
    Sunken military craft are administered by the respective Secretary 
concerned pursuant to the SMCA. The Secretary concerned is solely 
responsible for authorizing disturbance of sunken military craft under 
the SMCA, specifically for archaeological, historical, or educational 
purposes, and will consult with NOAA when considering permitting such 
activities. The Secretary concerned is also responsible for 
determinations of sunken military craft status and ownership, publicly 
disclosing the location of sunken military craft, and for determining 
eligibility and nominating

[[Page 4891]]

sunken military craft as historic properties to the National Register 
of Historic Places. Any agreements with foreign sovereigns regarding 
sunken military craft in U.S. waters are negotiated by the Secretary of 
Defense, the Secretary of State, and the Secretary of the Navy, 
according to authorities vested in each by the SMCA. The Secretary 
concerned, or his or her designee, and NOAA will ensure coordination 
and foster collaboration on any research, monitoring, and educational 
activities pertaining to sunken military craft located within the 
sanctuary system.
    The 1942 Battle of Midway occurred both at Midway Atoll as well as 
some 100-150 nautical miles north of the atoll in the northwestern 
portion of Papah[amacr]naumoku[amacr]kea. Aircraft carriers from the 
historic conflict have been located in the deep ocean, and multiple 
aircraft and sunken military vessels have been surveyed within the 
Midway Atoll Special Management Area. Hundreds of aircraft and several 
other aircraft carriers and destroyers from the battle remain to be 
discovered in Papah[amacr]naumoku[amacr]kea.

K. Coastal Zone Management Act (CZMA)

    Section 307 of the Coastal Zone Management Act (CZMA; 16 U.S.C. 
1456) requires Federal agencies to consult with a State's coastal 
program on potential Federal agency activities that affect any land or 
water use or natural resource of the coastal zone. Because the 
sanctuary lies partially within State waters, NOAA submitted its 
Federal consistency determination to the Hawai[revaps]i Coastal Zone 
Management Program of the Office of Planning and Sustainable 
Development. NOAA's analysis found the proposed action would be 
undertaken in a manner consistent to the maximum extent practicable 
with the enforceable policies of the Hawai[revaps]i Coastal Zone 
Management Program. NOAA's Federal consistency determination, and the 
State of Hawai`i May 17, 2024 concurrence letter, are included in the 
final EIS Appendix C1.

L. Executive Order 12898 and 14096: Environmental Justice

    Executive Order 12898 and Executive Order 14096 direct Federal 
agencies to identify and address disproportionately high and adverse 
effects of their actions on human health and the environment of 
communities with environmental justice concerns. Additionally, Federal 
agencies are directed to better protect overburdened communities from 
pollution and environmental harms; strengthen engagement with 
communities and mobilize Federal agencies to confront existing and 
legacy barriers and injustices; promote the latest science, data, and 
research, including on cumulative impacts; increase accountability and 
transparency in Federal environmental justice policy; and honor and 
build on the foundation of ongoing environmental justice work. The 
designation of national marine sanctuaries by NOAA helps to ensure the 
enhancement of environmental quality for all populations in the United 
States. The sanctuary designation would not result in disproportionate 
negative impacts on any communities with environmental justice 
concerns. In addition, many of the potential impacts from designating 
the sanctuary would result in long-term or permanent beneficial impacts 
by protecting resources, which may have a positive impact on 
communities by providing employment and educational opportunities, and 
potentially result in improved ecosystem services.

List of Subjects in 15 CFR Part 922

    Administrative practice and procedure; Coastal zone; Cultural 
resources; Environmental; Protection; Fishing; Historic preservation; 
Marine protected areas; Marine resources; Natural resources; National 
marine sanctuaries; Penalties; Recreation and recreation areas; 
Reporting and recordkeeping requirements; Shipwrecks; Wildlife.

Nicole R. LeBoeuf,
Assistant Administrator for Ocean Services and Coastal Zone Management, 
National Ocean Service, National Oceanic and Atmospheric 
Administration.

    For the reasons set forth above, NOAA amends part 922, title 15 of 
the Code of Federal Regulations as follows:

PART 922--NATIONAL MARINE SANCTUARY PROGRAM REGULATIONS

0
1. The authority citation for part 922 continues to read as follows:

    Authority: 16 U.S.C. 1431 et seq.


0
2. Amend Sec.  922.30 by:
0
a. Removing the word ``and'' at the end of paragraph (b)(6);
0
b. Removing the period at the end of paragraph (b)(7) and adding ``;'' 
in its place; and
0
c. Adding paragraphs (b)(8) and (9).
    The additions read as follows:


Sec.  922.30  National Marine Sanctuary general permits

* * * * *
    (b) * * *
    (8) Native Hawaiian Practices--activities that allow for Native 
Hawaiian practices within Papah[amacr]naumoku[amacr]kea National Marine 
Sanctuary; and
    (9) Recreation--recreational activities within 
Papah[amacr]naumoku[amacr]kea National Marine Sanctuary limited to the 
Midway Atoll Special Management Area.

0
3. Amend Sec.  922.33 by:
0
a. Removing the word ``and'' at the end of paragraph (a)(8);
0
b Removing the period at the end of paragraph (a)(9) and adding ``; 
and'' in its place; and
0
c. Adding paragraph (a)(10).
    The addition read as follows:


Sec.  922.33  Review procedures and evaluation.

    (a) * * *
    (10) For Papah[amacr]naumoku[amacr]kea National Marine Sanctuary, 
there is no practicable alternative to conducting the activity within 
the sanctuary and the activity can be conducted with adequate 
safeguards for the resources and ecological integrity of the sanctuary. 
Further, for Native Hawaiian Practices and Recreation permits in 
Papah[amacr]naumoku[amacr]kea National Marine Sanctuary, the activity 
meets the additional site-specific permit review criteria identified in 
Sec.  922.245.
* * * * *

0
4. Amend 922.37 by adding paragraph (g).


Sec.  922.37  Appeals of permitting decisions.

* * * * *
    (g) Paragraphs (a) through (f) of this section do not apply to 
Papah[amacr]naumoku[amacr]kea National Marine Sanctuary.
* * * * *

0
5. Add subpart W to read as follows:

Subpart W--Papah[amacr]naumoku[amacr]kea National Marine Sanctuary

Sec.
922.240 Boundary.
922.241 Definitions.
922.242 Cooperative management.
922.243 Access.
922.244 Prohibited or otherwise regulated activities.
922.245 Permit procedures and criteria.
922.246 Vessel monitoring system.
922.247 Sunken military craft.
Appendix A to Subpart W of Part 922--Papah[amacr]naumoku[amacr]kea 
National Marine Sanctuary Boundary Description and Coordinates
Appendix B to Subpart W of Part 922--Coordinates for the Outer 
Sanctuary Zone
Appendix C to Subpart W of Part 922--Coordinates for the Midway 
Atoll Special Management Area

[[Page 4892]]

Appendix D to Subpart W of Part 922--Coordinates for the Special 
Preservation Areas (SPAs)
Appendix E to Subpart W of Part 922--Coordinates for the Ship 
Reporting Area
Appendix F to Subpart W of Part 922--IMO Standard Reporting Format 
and Data Syntax for Ship Reporting System


Sec.  922.240  Boundary.

    Papah[amacr]naumoku[amacr]kea National Marine Sanctuary consists of 
an area of approximately 582,570 square miles (439,910 square nautical 
miles) of Pacific Ocean waters surrounding the Northwestern Hawaiian 
Islands and the submerged lands thereunder. The precise boundary 
coordinates are listed in Appendix A to this subpart. The outer seaward 
sanctuary boundary begins approximately 200 nautical miles SW of Kure 
Atoll at Point 1 and continues from this point roughly north to each 
successive point in numerical order to Point 232 which is approximately 
204 nautical miles north of Kure Atoll. From Point 232 the sanctuary 
boundary continues roughly ESE to each successive point in numerical 
order to Point 609 which is approximately 200 nautical miles NE of 
Necker Island. From Point 609 the sanctuary boundary continues south to 
Point 610 which is approximately 90 nautical miles ENE of Necker 
Island. From Point 610 the sanctuary boundary continues roughly east 
and then SE and south to Point 635 which is approximately 50 nautical 
miles east of Nihoa. From Point 635 the sanctuary boundary continues 
roughly south and then SW and west to each successive point in 
numerical order to Point 662 which is approximately 71 nautical miles 
SW of Nihoa. From Point 662 the sanctuary boundary continues south to 
Point 663 which is approximately 236 nautical miles SSW of Nihoa. From 
Point 663 the sanctuary boundary continues roughly NW to each 
successive point in numerical order to Point 703 which is approximately 
200 nautical miles SSE of Necker Island. From Point 703 the boundary 
continues roughly NW to each successive point in numerical order to 
Point 1128 where it ends approximately 200 nautical miles SW of Kure 
Atoll. The inner landward boundary of the sanctuary follows the 
shoreline as defined by the State of Hawai[revaps]i (HAR Sec.  13-222).


Sec.  922.241  Definitions.

    In addition to those definitions found at Sec.  922.11, the 
following definitions apply to this subpart. To the extent that a term 
appears in Sec.  922.11 and this section, the definition in this 
section governs.
    Areas to be avoided (ATBA) means the four areas, as adopted by the 
International Maritime Organization, that should be avoided by vessels 
that are conducting passage without interruption through the sanctuary. 
The precise boundary coordinates for the ATBAs are listed in Appendix E 
to this subpart.
    Bottomfish species means all species of bottomfish as defined at 50 
CFR 665.201.
    Categories of hazardous cargoes means goods classified in the 
International Maritime Dangerous Goods (IMDG) Code; substances 
classified in chapter 17 of the International Code for the Construction 
and Equipment of Ships Carrying Dangerous Chemicals in Bulk (IBC Code) 
and chapter 19 of the International Code for the Construction and 
Equipment of Ships Carrying Liquefied Gases in Bulk (IGC Code); oils as 
defined in MARPOL Annex I; noxious liquid substances as defined in 
MARPOL Annex II; harmful substances as defined in MARPOL Annex III; and 
radioactive materials specified in the International Code for the Safe 
Carriage of Packaged Irradiated Nuclear Fuel, Plutonium and High-Level 
Radioactive Waste on Board Ships (INF Code).
    Commercial fishing means, as defined in the Magnuson-Stevens 
Fishery Conservation and Management Act, fishing in which the fish 
harvested, either in whole or in part, are intended to enter commerce 
or enter commerce through sale, barter, or trade.
    Ecological integrity means a condition determined to be 
characteristic of an ecosystem that has the ability to maintain the 
function, structure, and abundance of natural biological communities, 
including rates of change in response to natural environmental 
variation.
    Midway Atoll Special Management Area means the area of the 
sanctuary surrounding Midway Atoll out to a distance of 12 nautical 
miles. The coordinates are listed in Appendix C to this subpart.
    Native Hawaiian practices means cultural activities conducted for 
the purposes of perpetuating traditional knowledge, caring for and 
protecting the environment and strengthening cultural and spiritual 
connections to the Northwestern Hawaiian Islands that have demonstrable 
benefits to the Native Hawaiian community. This may include, but is not 
limited to, the non-commercial use of sanctuary resources for direct 
personal consumption while in the sanctuary.
    Non-commercial fishing means fishing that does not meet the 
definition of commercial fishing in the Magnuson-Stevens Fishery 
Conservation and Management Act, and includes, but is not limited to, 
sustenance, subsistence, traditional indigenous, and recreational 
fishing.
    Office of Law Enforcement (OLE) means NOAA, National Marine 
Fisheries Service, Office of Law Enforcement.
    Outer Sanctuary Zone means the waters and submerged lands extending 
from approximately 50 nautical miles from all islands and emergent 
lands of the Northwestern Hawaiian Islands to the extent of the seaward 
limit of the United States Exclusive Economic Zone (U.S. EEZ) west of 
163[deg] West Longitude. The precise boundary coordinates for the Outer 
Sanctuary Zone are listed in Appendix B to this subpart.
    Particularly Sensitive Sea Area (PSSA) means an area that needs 
special protection through action by the International Maritime 
Organization because of its significance for recognized ecological, 
socio-economic, or scientific attributes where such attributes may be 
vulnerable to damage by international shipping activities.
    Pelagic species means Western Pacific Pelagic Management Unit 
Species as defined at 50 CFR 665.800.
    Pono means appropriate, correct, and deemed necessary by 
traditional standards in Hawaiian culture.
    Recreational activity means an activity conducted for personal 
enjoyment that does not result in the extraction of sanctuary resources 
and that does not involve a fee-for-service transaction. This includes, 
but is not limited to, wildlife viewing, SCUBA diving, snorkeling, and 
boating.
    Reporting area means the area of the sanctuary that extends outward 
ten nautical miles from the Particularly Sensitive Sea Area boundary, 
as designated by the International Maritime Organization, and excludes 
the Areas to be Avoided that fall within the Particularly Sensitive Sea 
Area boundary. The precise boundary coordinates for the reporting area 
are listed in Appendix E to this subpart.
    Scientific instrument means a device, vehicle, or tool used for 
scientific purposes and is inclusive of structures, materials, or other 
matter incidental to proper use of such device, vehicle, or tool.
    Special Preservation Area (SPA) means discrete, biologically 
important areas of the sanctuary within which uses are subject to 
certain conditions, restrictions, and prohibitions, including but not 
limited to access restrictions. The coordinates are listed in Appendix 
D to this subpart.

[[Page 4893]]

    Stowed and not available for immediate use means not readily 
accessible for immediate use, e.g., by being securely covered and 
lashed to a deck or bulkhead, tied down, unbaited, unloaded, or 
partially disassembled (e.g., spear shafts being kept separate from 
spearguns).
    Sustenance fishing means fishing for bottomfish or pelagic species 
in which all catch is consumed within the sanctuary, and that is 
incidental to an activity permitted under this part.
    Vessel monitoring system (VMS) means a mobile transceiver unit as 
described in Sec.  922.246 and approved by NOAA's Office of Law 
Enforcement for use on vessels permitted to access the sanctuary, as 
required by this part.


Sec.  922.242  Cooperative management.

    (a) NOAA has primary responsibility for the management of the 
sanctuary pursuant to the National Marine Sanctuaries Act. As the 
sanctuary includes State waters, NOAA will co-manage 
Papah[amacr]naumoku[amacr]kea National Marine Sanctuary with the State 
of Hawai[revaps]i.
    (b) NOAA will also manage the sanctuary in partnership with the 
U.S. Fish and Wildlife Service and the Office of Hawaiian Affairs.
    (c) Nothing in these regulations or establishment of the national 
marine sanctuary shall diminish U.S. Fish and Wildlife Service's 
authority to administer Midway Atoll National Wildlife Refuge and 
Hawaiian Islands National Wildlife Refuge under the National Wildlife 
Refuge System Administration Act, as amended, and other U.S. Fish and 
Wildlife Service authorities. Where Papah[amacr]naumoku[amacr]kea 
National Marine Sanctuary overlays Midway Atoll National Wildlife 
Refuge and Hawaiian Islands National Wildlife Refuge, NOAA will 
implement the National Marine Sanctuaries Act to provide supplemental 
authority to protect resources.
    (d) NOAA, in exercising its management authority under National 
Marine Sanctuaries Act Section 304(d), recognizes U.S. Fish and 
Wildlife Service's management authority over Midway Atoll National 
Wildlife Refuge and Hawaiian Islands National Wildlife Refuge under the 
National Wildlife Refuge System Administration Act, as amended.


Sec.  922.243  Access.

    (a) Access to the Sanctuary is prohibited and thus unlawful except:
    (1) When conducting emergency response actions, law enforcement 
activities, and activities and exercises of the Armed Forces in 
accordance with Sec.  922.244(b) and (c);
    (2) Pursuant to a permit issued under Sec.  922.245;
    (3) When conducting non-commercial fishing activities in the Outer 
Sanctuary Zone authorized under the Magnuson-Stevens Fishery 
Conservation and Management Act in accordance with Sec.  922.244 (d);
    (4) When conducting scientific exploration or research activities 
by or for the Secretary of Commerce or the Secretary of the Interior in 
the Outer Sanctuary Zone in accordance with Sec.  922.244 (f).
    (5) When conducting passage without interruption in accordance with 
paragraphs (b), (c), and (d) of this section.
    (b) A vessel may pass without interruption through the sanctuary 
without requiring a permit as long as the vessel does not stop or 
engage in the prohibited activities listed in Sec.  922.244 within the 
sanctuary.
    (c) For areas of the sanctuary that are contained within the 
reporting area surrounding the Particularly Sensitive Sea Area (PSSA) 
designated by the International Maritime Organization (IMO), a ship 
reporting system (CORAL SHIPREP) specified below shall be in effect. 
The coordinates for the Reporting Area are listed in Appendix E to this 
subpart.
    (1) The following vessels, except vessels entitled to sovereign 
immunity under international law, passing through the reporting area of 
the sanctuary without interruption, must participate in the ship 
reporting system as specified in paragraphs (c)(2) through (6) of this 
section:
    (i) Vessels of the United States of any size;
    (ii) All other ships 300 gross tonnage or greater that are entering 
or departing a United States port or place; and
    (iii) All other ships of any size entering or departing a United 
States port or place and experiencing an emergency while transiting 
through the reporting area.
    (2) All vessels passing through the reporting area of the sanctuary 
without interruption other than those described in paragraph (c)(1) of 
this section are encouraged to participate in the ship reporting system 
set forth in paragraphs (c)(2) through (6) of this section.
    (3) Immediately upon entering the reporting area, vessels described 
in paragraph (c)(1) of this section must provide the following 
information by email sent to [email protected] in the IMO 
standard reporting format and data syntax shown in Appendix F to this 
subpart:
    (i) Vessel name, call sign or ship station identity, flag, and IMO 
identification number if applicable, and either Federal documentation 
or State registration number if applicable;
    (ii) Date, time (UTC) and month of entry;
    (iii) Position;
    (iv) True course;
    (v) Speed in knots and tenths;
    (vi) Destination and estimated time of arrival;
    (vii) Intended route through the reporting area;
    (viii) Vessel draft (in meters);
    (ix) Categories of hazardous cargoes on board;
    (x) Any vessel defects or deficiencies that restrict 
maneuverability or impair normal navigation;
    (xi) Any pollution incident or goods lost overboard within the 
PSSA, the reporting area, or the U.S. EEZ;
    (xii) Contact information for the vessel's agent or owner;
    (xiii) Vessel size (length overall, gross tonnage) and type; and
    (xiv) Total number of persons on board.
    (4) Immediately upon leaving the reporting area, vessels described 
in paragraph (c)(1) of this section must provide the following 
information by email sent to [email protected] in the IMO 
standard reporting format and data syntax shown in Appendix F to this 
subpart:
    (i) Vessel name, call sign or ship station identity, flag, and IMO 
identification number if applicable, and either Federal documentation 
or State registration number if applicable;
    (ii) Date, time (UTC), and month of exit;
    (iii) Position; and
    (iv) Any pollution incident or goods lost overboard within the 
PSSA, the reporting area, or the U.S. EEZ.
    (5) For vessels that are not equipped with on-board email 
capability, advanced notice of entrance (as outlined in paragraph 
(c)(3) of this section) shall be provided at least 72 hours, but not 
more than one month, prior to entering the reporting area. Notification 
of departure (as outlined in paragraph (c)(4) of this section) must be 
provided within 12 hours of leaving the reporting area. Notification 
under this paragraph may be made by email, telephone, or fax, by 
contacting:
    (i) Email: [email protected];
    (ii) Telephone: 1-808-395-6944 or 1-866-478-6944; or
    (iii) Fax: 1-808-455-3093.
    (6) Further reports shall be made by the vessels described in 
paragraph (c)(1) of this section, and are encouraged for

[[Page 4894]]

the vessels described in paragraph (c)(2) of this section, whenever 
there is a change in navigation status or circumstances, particularly 
in relation to the intended route, defects or deficiencies, pollution 
incidents, or goods lost overboard.


Sec.  922.244  Prohibited or otherwise regulated activities.

    (a) The following activities are prohibited and thus are unlawful 
for any person to conduct or to cause to be conducted within the 
sanctuary, except as specified in paragraphs (b) through (f) of this 
section:
    (1) Exploring for, developing, or producing oil, gas, or minerals, 
or any energy development activities;
    (2) Using or attempting to use poisons, electrical charges, or 
explosives in the collection or harvest of a sanctuary resource;
    (3) Introducing or otherwise releasing an introduced species from 
within or into the sanctuary;
    (4) Deserting a vessel;
    (5) Anchoring on or having a vessel anchored on any living or dead 
coral with an anchor, anchor chain, or anchor rope;
    (6) Commercial fishing, or possessing commercial fishing gear 
except when stowed and not available for immediate use;
    (7) Failing to comply with the vessel monitoring system 
requirements in violation of Sec.  922.246.
    (8) Failing to comply with ship reporting requirements in violation 
of Sec.  922.243.
    (9) Non-commercial fishing, or possessing non-commercial fishing 
gear except when stowed and not available for immediate use;
    (10) Drilling into, dredging, or otherwise altering the submerged 
lands; or constructing, placing, or abandoning any structure, material, 
or other matter on the submerged lands;
    (11) Removing, moving, taking, harvesting, possessing, injuring, 
disturbing, or damaging; or attempting to remove, move, take, harvest, 
possess, injure, disturb, or damage any living or nonliving sanctuary 
resource;
    (12) Attracting any living sanctuary resource;
    (13) Touching coral, living or dead;
    (14) Swimming, snorkeling, or closed or open circuit SCUBA diving;
    (15) Discharging or depositing any material or other matter into 
the sanctuary, or discharging or depositing any material or other 
matter outside of the sanctuary that subsequently enters the sanctuary 
and injures or has the potential to injure any resources of the 
sanctuary, except for:
    (i) Fish, fish parts, or chumming materials (bait) used in or 
resulting from lawful fishing activity, provided that such discharge or 
deposit is during the conduct of lawful fishing activity within the 
sanctuary;
    (ii) Discharge incidental to vessel operations such as approved 
marine sanitation device effluent, cooling water, and engine exhaust, 
consistent with Federal statute or regulation; and
    (iii) Within Special Preservation Areas or the Midway Atoll Special 
Management Area, discharging or depositing material or other matter is 
limited to vessel engine cooling water, weather deck runoff, and vessel 
engine exhaust, consistent with Federal statute or regulation.
    (16) Anchoring a vessel.
    (b) The prohibitions in paragraph (a) of this section do not apply 
to activities necessary to respond to emergencies threatening life, 
property, or the environment, or to activities necessary for law 
enforcement purposes.
    (c) The prohibitions in paragraph (a) of this section do not apply 
to activities and exercises of the U.S. Armed Forces (including those 
carried out by the U.S. Coast Guard). This includes the U.S. Armed 
Forces' response to emergencies posing an unacceptable threat to human 
health or safety or to the marine environment and admitting of no other 
feasible solution. All activities and exercises of the U.S. Armed 
Forces shall be carried out in a manner that avoids, to the extent 
practicable and consistent with operational requirements, adverse 
impacts on sanctuary resources and qualities. These regulations shall 
not limit or otherwise affect the U.S. Armed Forces discretion to use, 
maintain, improve, manage, or control any property under their 
administrative control or otherwise limit the availability of such 
property for military mission purposes, including, but not limited to, 
defensive areas and airspace reservations.
    (d) The prohibitions in paragraph (a)(9) through (12), and (a)(14) 
of this section do not apply to non-commercial fishing activities in 
the Outer Sanctuary Zone authorized under the Magnuson-Stevens Fishery 
Conservation and Management Act provided that:
    (1) Fish harvested, either in whole or in part, are not intended to 
enter commerce and shall not enter commerce through sale, barter, or 
trade, and that the resource is managed sustainably;
    (2) Fish harvested, either in whole or in part, are not intended to 
be sold and shall not be sold for any purposes, including, but not 
limited to, cost-recovery; and
    (3) The activities under paragraph (a)(9) through (12), and (a)(14) 
are only conducted as incidental to and necessary to conduct lawful 
non-commercial fishing activity.
    (e) The prohibitions in paragraphs (a)(9) through (16) of this 
section, do not apply to any activity conducted under and in accordance 
with the scope, purpose, terms, and conditions of a sanctuary general 
permit, or special use permit issued pursuant to subpart D of this 
part. In no event, may the Director issue a National Marine Sanctuary 
general permit or special use permit authorizing or otherwise approving 
activities listed in paragraph (a)(10) of this section for anything 
other than scientific instruments, when the activity occurs within the 
Outer Sanctuary Zone.
    (f) The prohibitions in paragraph (a) of this section shall not 
restrict scientific exploration or research activities by or for the 
Secretary of Commerce or the Secretary of the Interior when the 
activity occurs within the Outer Sanctuary Zone.


Sec.  922.245  Permit procedures and criteria.

    (a) A person may conduct an activity otherwise prohibited by Sec.  
922.244(a)(9) through (16), if such activity is specifically allowed by 
and conducted in accordance with the scope, purpose, terms and 
conditions of a permit issued under this section and subpart D of this 
part, and any additional permit issuance criteria and requirements in 
paragraphs (a)(1) and (a)(2) of this section.
    (1) Native Hawaiian Practices
    (i) The activity is non-commercial and will not involve the sale of 
any organism or material collected;
    (ii) The purpose and intent of this activity is appropriate and 
deemed necessary by traditional standards in the Native Hawaiian 
culture (pono), and demonstrates an understanding of, and background 
in, the traditional practice, and its associated values and protocols;
    (iii) The activity benefits the resources of the Northwestern 
Hawaiian Islands and the Native Hawaiian community;
    (iv) The activity supports or advances the perpetuation of 
traditional knowledge and ancestral connections of Native Hawaiians to 
the Northwestern Hawaiian Islands; and
    (v) Any living sanctuary resource harvested from the sanctuary will 
be consumed or utilized in the sanctuary.
    (2) Recreation permits
    (i) The activity is limited to the Midway Atoll Special Management 
Area.
    (ii) The activity is for the purpose of recreational activities as 
defined in Sec.  922.241;

[[Page 4895]]

    (iii) The activity is not associated with any for-hire operation;
    (iv) The activity does not involve any extractive use; and
    (b) Applications for permits should be addressed to the NOAA Inouye 
Regional Center, Office of National Marine Sanctuaries; ATT: Permit 
Coordinator, Papah[amacr]naumoku[amacr]kea, 1845 Wasp Blvd., Building 
176, Honolulu, HI 96818.
    (c) The Secretary of Commerce may authorize sustenance fishing 
outside of any Special Preservation Area as a term or condition of any 
general permit or special use permit issued under this section and 
subpart D of this part. Sustenance fishing in the Midway Atoll Special 
Management Area shall not be allowed unless the activity has been 
determined by the Director of the U.S. Fish and Wildlife Service or 
their designee to be compatible with the purposes for which the Midway 
Atoll National Wildlife Refuge was established. Sustenance fishing must 
be conducted in a manner compatible with this part, including 
considering the extent to which the conduct of the activity may 
diminish Sanctuary resources, qualities, and ecological integrity, as 
well as any indirect, secondary, or cumulative effects of the activity 
and the duration of such effects. The Secretary of Commerce may develop 
procedures for systematic reporting of sustenance fishing.
    (d) In addition to other applicable permit issuance criteria and 
requirements, a permit may not be issued under this section unless the 
applicant's vessel has been outfitted with a VMS unit approved by OLE 
and the applicant complies with the requirements of Sec.  922.246.


Sec.  922.246  Requirements for a vessel monitoring system.

    (a) Requirement for use. An owner or operator of a vessel that has 
been issued a general permit or special use permit under Sec.  922.245 
and subpart D of this part must ensure that such vessel is operating a 
NOAA OLE type-approved VMS on board when operating within the 
sanctuary. An operating VMS includes an operating mobile transmitting 
unit on the vessel and a functioning communication link between the 
unit and OLE as provided by an OLE-approved communication service 
provider. As a condition of authorized access to the sanctuary, a 
vessel owner or operator subject to the requirements for a VMS in this 
section must allow OLE, the U.S. Coast Guard, and their authorized 
officers and designees access to the vessel's position data obtained 
from the VMS. NOAA may have access to, and use of, collected data for 
scientific, statistical, and management purposes, and to monitor 
implementation of this subpart.
    (b) Installing and activating the VMS. (1) OLE has approval 
authority over the type of VMS used and the installation and operation 
of the VMS unit.
    (2) The owner or operator of a vessel must coordinate with OLE to 
install and activate an approved VMS prior to operating within the 
sanctuary. For the purposes of this section, the following contact 
information applies:
    (i) OLE. Address: 1845 Wasp Blvd., Bldg. 176, Honolulu, HI 96818; 
telephone: 808-725-6100; facsimile: 808-725-6199; email: 
[email protected]; business hours: Monday through Friday, except Federal 
holidays, 8 a.m. to 4:30 p.m., Hawaii Standard Time.
    (ii) VMS Helpdesk. Telephone: 888-219-9228; email: 
[email protected]; business hours: Monday through Friday, except 
Federal holidays, 7 a.m. to 11 p.m., Eastern Time.
    (c) Interruption of operation of the VMS. When a vessel's VMS is 
not operating properly within the sanctuary, the owner or operator must 
immediately contact OLE, and follow instructions from that office. If 
notified by OLE that a vessel's VMS is not operating properly, the 
owner and operator must follow instructions from that office. In either 
event, such instructions may include, but are not limited to, manually 
communicating a vessel's location as directed by OLE; or exiting the 
sanctuary until the VMS is operable.
    (d) Activities Regarding VMS For Vessels Operating in the 
Sanctuary. The following activities regarding vessel monitoring systems 
are prohibited and thus unlawful for any person to conduct or cause to 
be conducted:
    (1) Operating any vessel within the sanctuary without an OLE type-
approved VMS;
    (2) Failing to install, activate, repair, or replace a VMS prior to 
entering the sanctuary;
    (3) Failing to operate and maintain a VMS on board the vessel;
    (4) Tampering with, damaging, destroying, altering, or in any way 
distorting, rendering useless, inoperative, ineffective, or inaccurate 
the VMS, or VMS signal, or attempting any of the same;
    (5) Failing to contact OLE or follow OLE instructions when 
automatic position reporting has been interrupted;
    (6) Registering a VMS to more than one vessel permitted to operate 
within the sanctuary at the same time;
    (7) Connecting or leaving connected additional equipment to a VMS 
unit without the prior approval of OLE; and
    (8) Making a false statement, oral or written, to an authorized 
officer regarding the installation, use, operation, or maintenance of a 
VMS unit-or communication service provider.


Sec.  922.247  Sunken military craft.

    Sunken military craft are administered by the respective Secretary 
concerned pursuant to the Sunken Military Craft Act (Pub. L. 108-375, 
Title XIV, sections 1401 to 1408; 10 U.S.C. 113 note). The Director 
will enter into a Memorandum of Agreement regarding collaboration with 
other Federal agencies charged with implementing the Sunken Military 
Craft Act that may address aspects of managing and protecting sunken 
military craft. The Director will request approval from the Secretary 
concerned for any terms and conditions of ONMS permits that may involve 
sunken military craft.

Appendix A to Subpart W of Part 922--Papah[amacr]naumoku[amacr]kea 
National Marine Sanctuary Boundary Description and Coordinates

[Coordinates listed in this appendix are unprojected (Geographic) 
and based on the North American Datum of 1983]

------------------------------------------------------------------------
                 Point No.                      Longitude      Latitude
------------------------------------------------------------------------
1..........................................       180.00000     25.38976
2..........................................       179.99985     25.38982
3..........................................       179.96681     25.40451
4..........................................       179.93392     25.41950
5..........................................       179.90119     25.43478
6..........................................       179.86863     25.45034
7..........................................       179.83622     25.46619
8..........................................       179.78793     25.49050
9..........................................       179.75595     25.50707
10.........................................       179.72415     25.52391
11.........................................       179.69252     25.54104
12.........................................       179.66108     25.55844
13.........................................       179.62981     25.57612
14.........................................       179.59874     25.59408
15.........................................       179.56786     25.61231
16.........................................       179.53716     25.63081
17.........................................       179.50667     25.64959
18.........................................       179.47637     25.66863
19.........................................       179.44627     25.68794
20.........................................       179.41638     25.70751
21.........................................       179.38670     25.72735
22.........................................       179.35722     25.74745
23.........................................       179.32796     25.76781
24.........................................       179.28448     25.79883
25.........................................       179.25576     25.81983
26.........................................       179.22255     25.84463
27.........................................       179.18175     25.87583
28.........................................       179.15383     25.89770
29.........................................       179.12613     25.91982
30.........................................       179.09868     25.94218
31.........................................       179.07146     25.96479
32.........................................       179.03108     25.99915
33.........................................       179.00447     26.02235
34.........................................       178.97810     26.04578
35.........................................       178.93902     26.08137
36.........................................       178.91329     26.10537
37.........................................       178.88781     26.12961
38.........................................       178.86259     26.15407

[[Page 4896]]

 
39.........................................       178.82525     26.19117
40.........................................       178.80068     26.21618
41.........................................       178.77639     26.24141
42.........................................       178.75236     26.26685
43.........................................       178.71683     26.30540
44.........................................       178.69349     26.33136
45.........................................       178.65901     26.37068
46.........................................       178.63637     26.39715
47.........................................       178.61378     26.42409
48.........................................       178.59171     26.45096
49.........................................       178.56993     26.47801
50.........................................       178.54844     26.50526
51.........................................       178.52725     26.53270
52.........................................       178.49601     26.57420
53.........................................       178.46544     26.61611
54.........................................       178.44544     26.64427
55.........................................       178.41601     26.68685
56.........................................       178.39677     26.71544
57.........................................       178.37784     26.74421
58.........................................       178.35922     26.77314
59.........................................       178.34092     26.80223
60.........................................       178.30653     26.85803
61.........................................       178.28885     26.88744
62.........................................       178.26294     26.93185
63.........................................       178.24606     26.96164
64.........................................       178.22951     26.99158
65.........................................       178.21329     27.02166
66.........................................       178.19632     27.05394
67.........................................       178.17402     27.09774
68.........................................       178.15895     27.12831
69.........................................       178.14422     27.15901
70.........................................       178.12274     27.20529
71.........................................       178.10884     27.23631
72.........................................       178.08864     27.28305
73.........................................       178.06920     27.33006
74.........................................       178.05667     27.36154
75.........................................       178.03853     27.40896
76.........................................       178.02687     27.44071
77.........................................       178.01003     27.48851
78.........................................       177.99924     27.52051
79.........................................       177.98881     27.55259
80.........................................       177.97873     27.58477
81.........................................       177.96901     27.61703
82.........................................       177.95509     27.66559
83.........................................       177.94198     27.71432
84.........................................       177.93368     27.74690
85.........................................       177.92568     27.77984
86.........................................       177.91811     27.81256
87.........................................       177.90744     27.86176
88.........................................       177.90079     27.89464
89.........................................       177.89149     27.94406
90.........................................       177.88574     27.97707
91.........................................       177.88037     28.01014
92.........................................       177.87300     28.05982
93.........................................       177.86647     28.10959
94.........................................       177.86258     28.14281
95.........................................       177.85744     28.19271
96.........................................       177.85447     28.22601
97.........................................       177.85073     28.27600
98.........................................       177.84871     28.30936
99.........................................       177.84706     28.34273
100........................................       177.84529     28.39281
101........................................       177.84436     28.44291
102........................................       177.84422     28.47631
103........................................       177.84445     28.50971
104........................................       177.84551     28.55981
105........................................       177.84670     28.59348
106........................................       177.84844     28.63098
107........................................       177.85148     28.68101
108........................................       177.85399     28.71434
109........................................       177.85761     28.75561
110........................................       177.86197     28.79830
111........................................       177.86786     28.84813
112........................................       177.87226     28.88131
113........................................       177.87543     28.90360
114........................................       177.87967     28.93173
115........................................       177.88514     28.96554
116........................................       177.89133     29.00123
117........................................       177.90063     29.05066
118........................................       177.90735     29.08379
119........................................       177.91806     29.13300
120........................................       177.92567     29.16572
121........................................       177.93780     29.21468
122........................................       177.94636     29.24722
123........................................       177.95989     29.29590
124........................................       177.96959     29.32896
125........................................       177.97946     29.36122
126........................................       177.98970     29.39340
127........................................       178.00575     29.44148
128........................................       178.01692     29.47341
129........................................       178.03438     29.52113
130........................................       178.04647     29.55280
131........................................       178.06531     29.60012
132........................................       178.08497     29.64717
133........................................       178.09853     29.67840
134........................................       178.11268     29.71000
135........................................       178.13426     29.75642
136........................................       178.15665     29.80255
137........................................       178.17203     29.83313
138........................................       178.19577     29.87875
139........................................       178.21216     29.90921
140........................................       178.22879     29.93930
141........................................       178.25439     29.98416
142........................................       178.27525     30.01949
143........................................       178.29311     30.04905
144........................................       178.31861     30.09001
145........................................       178.34009     30.12350
146........................................       178.35931     30.15271
147........................................       178.38857     30.19588
148........................................       178.41018     30.22681
149........................................       178.43934     30.26737
150........................................       178.47063     30.30946
151........................................       178.49239     30.33792
152........................................       178.51400     30.36556
153........................................       178.54703     30.40666
154........................................       178.57973     30.44608
155........................................       178.60482     30.47552
156........................................       178.62805     30.50216
157........................................       178.65341     30.53061
158........................................       178.68811     30.56854
159........................................       178.71589     30.59815
160........................................       178.75298     30.63662
161........................................       178.77809     30.66199
162........................................       178.80351     30.68713
163........................................       178.84220     30.72443
164........................................       178.88157     30.76121
165........................................       178.90818     30.78543
166........................................       178.94864     30.82133
167........................................       178.97598     30.84496
168........................................       179.00360     30.86835
169........................................       179.04556     30.90297
170........................................       179.07393     30.92578
171........................................       179.11693     30.95947
172........................................       179.14594     30.98161
173........................................       179.18995     31.01433
174........................................       179.21963     31.03582
175........................................       179.26463     31.06757
176........................................       179.29516     31.08855
177........................................       179.34112     31.11928
178........................................       179.38763     31.14941
179........................................       179.41894     31.16915
180........................................       179.45050     31.18861
181........................................       179.49827     31.21728
182........................................       179.54657     31.24532
183........................................       179.57905     31.26365
184........................................       179.61792     31.28512
185........................................       179.65085     31.30287
186........................................       179.70065     31.32895
187........................................       179.73411     31.34598
188........................................       179.77707     31.36728
189........................................       179.81095     31.38371
190........................................       179.86214     31.40779
191........................................       179.89652     31.42346
192........................................       179.94844     31.44640
193........................................       179.98329     31.46131
194........................................      -180.00000     31.46823
195........................................      -179.96410     31.48309
196........................................      -179.92880     31.49722
197........................................      -179.89333     31.51105
198........................................      -179.83980     31.53119
199........................................      -179.78591     31.55062
200........................................      -179.74978     31.56318
201........................................      -179.71350     31.57542
202........................................      -179.65880     31.59317
203........................................      -179.62215     31.60460
204........................................      -179.56692     31.62114
205........................................      -179.51138     31.63695
206........................................      -179.47371     31.64721
207........................................      -179.41770     31.66179
208........................................      -179.38021     31.67109
209........................................      -179.33210     31.68252
210........................................      -179.28243     31.69383
211........................................      -179.23675     31.70369
212........................................      -179.19878     31.71149
213........................................      -179.16071     31.71896
214........................................      -179.10344     31.72953
215........................................      -179.06516     31.73615
216........................................      -179.00758     31.74546
217........................................      -178.94983     31.75399
218........................................      -178.90738     31.75980
219........................................      -178.86874     31.76473
220........................................      -178.82975     31.76934
221........................................      -178.79099     31.77358
222........................................      -178.75218     31.77748
223........................................      -178.71332     31.78104
224........................................      -178.67441     31.78425
225........................................      -178.63547     31.78712
226........................................      -178.59650     31.78964
227........................................      -178.55749     31.79182
228........................................      -178.51846     31.79366
229........................................      -178.47941     31.79515
230........................................      -178.43412     31.79649
231........................................      -178.39504     31.79729
232........................................      -178.35596     31.79775
233........................................      -178.32396     31.79786
234........................................      -178.28487     31.79769
235........................................      -178.24553     31.79717
236........................................      -178.20645     31.79631
237........................................      -178.16738     31.79510
238........................................      -178.12834     31.79354
239........................................      -178.08931     31.79165
240........................................      -178.05031     31.78940
241........................................      -178.01134     31.78682
242........................................      -177.97241     31.78389
243........................................      -177.93351     31.78061
244........................................      -177.89466     31.77699
245........................................      -177.85585     31.77303
246........................................      -177.81646     31.76865
247........................................      -177.77776     31.76401
248........................................      -177.73912     31.75902
249........................................      -177.70055     31.75369
250........................................      -177.66205     31.74802
251........................................      -177.62362     31.74202
252........................................      -177.58526     31.73567
253........................................      -177.54140     31.72800
254........................................      -177.50321     31.72097
255........................................      -177.46512     31.71361
256........................................      -177.42712     31.70592
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758........................................      -166.52032     20.30205
759........................................      -166.57311     20.30796
760........................................      -166.61798     20.31350
761........................................      -166.65308     20.31816
762........................................      -166.70563     20.32577
763........................................      -166.74060     20.33125
764........................................      -166.77552     20.33705
765........................................      -166.82777     20.34635
766........................................      -166.87988     20.35637
767........................................      -166.91453     20.36345
768........................................      -166.94911     20.37085
769........................................      -166.99267     20.38061
770........................................      -167.02709     20.38865
771........................................      -167.07857     20.40130
772........................................      -167.11278     20.41012
773........................................      -167.14689     20.41926
774........................................      -167.19433     20.43226
775........................................      -167.22830     20.44187
776........................................      -167.26218     20.45180
777........................................      -167.29596     20.46203
778........................................      -167.32963     20.47258
779........................................      -167.36319     20.48344
780........................................      -167.39664     20.49460
781........................................      -167.44659     20.51193
782........................................      -167.47975     20.52386
783........................................      -167.51278     20.53610
784........................................      -167.54695     20.54912
785........................................      -167.57973     20.56197
786........................................      -167.61238     20.57511
787........................................      -167.64489     20.58856
788........................................      -167.67726     20.60230
789........................................      -167.70949     20.61635
790........................................      -167.74158     20.63068
791........................................      -167.77351     20.64532
792........................................      -167.80530     20.66024
793........................................      -167.83694     20.67546
794........................................      -167.86841     20.69097
795........................................      -167.91533     20.71478
796........................................      -167.94640     20.73101
797........................................      -167.97731     20.74752
798........................................      -168.00804     20.76432
799........................................      -168.03861     20.78140
800........................................      -168.08412     20.80755
801........................................      -168.11424     20.82533
802........................................      -168.14417     20.84338
803........................................      -168.17392     20.86172
804........................................      -168.20348     20.88032
805........................................      -168.24746     20.90873
806........................................      -168.27653     20.92801
807........................................      -168.31977     20.95743
808........................................      -168.36255     20.98744
809........................................      -168.40487     21.01804
810........................................      -168.43282     21.03877
811........................................      -168.47433     21.07033
812........................................      -168.50174     21.09169
813........................................      -168.54244     21.12420
814........................................      -168.58263     21.15727
815........................................      -168.62230     21.19089
816........................................      -168.66145     21.22506
817........................................      -168.68726     21.24813
818........................................      -168.71283     21.27145
819........................................      -168.75073     21.30685
820........................................      -168.77569     21.33074
821........................................      -168.81266     21.36701
822........................................      -168.83700     21.39147
823........................................      -168.87302     21.42858
824........................................      -168.90847     21.46618
825........................................      -168.93178     21.49152
826........................................      -168.96624     21.52992
827........................................      -168.99177     21.55913
828........................................      -169.02276     21.59546
829........................................      -169.04473     21.62184
830........................................      -169.07716     21.66178
831........................................      -169.09844     21.68866
832........................................      -169.12982     21.72934
833........................................      -169.15039     21.75669
834........................................      -169.18071     21.79808
835........................................      -169.20232     21.82840
836........................................      -169.21703     21.84743
837........................................      -169.23883     21.85466
838........................................      -169.27247     21.86611
839........................................      -169.32272     21.88387
840........................................      -169.37269     21.90231
841........................................      -169.42237     21.92143
842........................................      -169.47175     21.94123
843........................................      -169.52083     21.96170
844........................................      -169.56958     21.98284
845........................................      -169.61800     22.00464
846........................................      -169.66608     22.02710
847........................................      -169.71382     22.05022
848........................................      -169.76119     22.07399
849........................................      -169.80819     22.09840
850........................................      -169.85481     22.12345
851........................................      -169.90103     22.14914
852........................................      -169.94686     22.17546
853........................................      -169.97718     22.19335
854........................................      -170.00653     22.21103
855........................................      -170.05123     22.20415
856........................................      -170.08671     22.19907
857........................................      -170.12225     22.19430
858........................................      -170.15783     22.18987
859........................................      -170.19345     22.18575
860........................................      -170.22911     22.18196
861........................................      -170.28268     22.17688
862........................................      -170.31843     22.17390
863........................................      -170.35421     22.17125
864........................................      -170.39001     22.16891
865........................................      -170.42584     22.16691
866........................................      -170.46169     22.16523
867........................................      -170.51548     22.16332
868........................................      -170.55136     22.16245
869........................................      -170.58725     22.16191
870........................................      -170.62314     22.16170
871........................................      -170.65929     22.16181
872........................................      -170.69518     22.16224
873........................................      -170.73106     22.16301
874........................................      -170.76693     22.16410
875........................................      -170.80279     22.16551
876........................................      -170.83863     22.16725
877........................................      -170.89236     22.17047
878........................................      -170.92815     22.17302
879........................................      -170.96391     22.17590
880........................................      -170.99964     22.17910
881........................................      -171.03533     22.18262
882........................................      -171.07099     22.18647
883........................................      -171.12440     22.19286
884........................................      -171.15995     22.19751
885........................................      -171.19545     22.20249
886........................................      -171.23089     22.20780
887........................................      -171.28396     22.21635
888........................................      -171.33689     22.22563
889........................................      -171.38967     22.23563
890........................................      -171.42477     22.24269
891........................................      -171.47727     22.25389
892........................................      -171.52961     22.26579
893........................................      -171.58175     22.27841
894........................................      -171.63370     22.29174
895........................................      -171.68543     22.30577
896........................................      -171.73694     22.32050
897........................................      -171.78823     22.33594
898........................................      -171.83927     22.35207
899........................................      -171.89005     22.36889
900........................................      -171.94057     22.38641
901........................................      -171.99082     22.40461
902........................................      -172.03998     22.42318
903........................................      -172.09233     22.42751
904........................................      -172.12811     22.43088
905........................................      -172.18170     22.43653
906........................................      -172.21738     22.44070
907........................................      -172.25302     22.44519
908........................................      -172.28861     22.45001
909........................................      -172.32414     22.45515
910........................................      -172.37735     22.46346
911........................................      -172.41274     22.46941
912........................................      -172.46572     22.47892
913........................................      -172.50095     22.48566
914........................................      -172.55367     22.49638
915........................................      -172.58872     22.50392
916........................................      -172.64114     22.51582
917........................................      -172.67599     22.52415
918........................................      -172.71075     22.53279
919........................................      -172.76272     22.54635
920........................................      -172.79725     22.55578
921........................................      -172.83168     22.56552
922........................................      -172.86601     22.57558
923........................................      -172.90023     22.58594
924........................................      -172.95136     22.60207
925........................................      -172.98531     22.61320
926........................................      -173.03602     22.63048

[[Page 4900]]

 
927........................................      -173.08645     22.64845
928........................................      -173.11992     22.66081
929........................................      -173.15325     22.67347
930........................................      -173.18646     22.68643
931........................................      -173.23601     22.70643
932........................................      -173.26888     22.72014
933........................................      -173.30160     22.73415
934........................................      -173.34556     22.75354
935........................................      -173.37723     22.74830
936........................................      -173.41276     22.74274
937........................................      -173.44836     22.73750
938........................................      -173.48400     22.73258
939........................................      -173.51970     22.72798
940........................................      -173.55544     22.72371
941........................................      -173.59122     22.71976
942........................................      -173.62704     22.71613
943........................................      -173.66290     22.71283
944........................................      -173.69879     22.70985
945........................................      -173.73471     22.70720
946........................................      -173.77065     22.70487
947........................................      -173.80661     22.70286
948........................................      -173.84260     22.70118
949........................................      -173.87860     22.69983
950........................................      -173.91461     22.69880
951........................................      -173.95063     22.69810
952........................................      -173.98666     22.69772
953........................................      -174.02268     22.69767
954........................................      -174.05871     22.69794
955........................................      -174.09473     22.69854
956........................................      -174.13075     22.69947
957........................................      -174.16675     22.70072
958........................................      -174.20274     22.70229
959........................................      -174.23871     22.70419
960........................................      -174.27466     22.70642
961........................................      -174.31059     22.70897
962........................................      -174.34649     22.71185
963........................................      -174.38235     22.71504
964........................................      -174.41819     22.71857
965........................................      -174.45398     22.72242
966........................................      -174.48974     22.72659
967........................................      -174.52545     22.73108
968........................................      -174.56111     22.73589
969........................................      -174.59672     22.74103
970........................................      -174.63227     22.74649
971........................................      -174.66777     22.75227
972........................................      -174.70321     22.75837
973........................................      -174.73859     22.76479
974........................................      -174.77389     22.77153
975........................................      -174.82672     22.78224
976........................................      -174.86184     22.78978
977........................................      -174.89689     22.79763
978........................................      -174.93185     22.80580
979........................................      -174.96673     22.81429
980........................................      -175.00151     22.82309
981........................................      -175.03621     22.83220
982........................................      -175.07081     22.84163
983........................................      -175.10531     22.85136
984........................................      -175.13972     22.86141
985........................................      -175.17401     22.87177
986........................................      -175.20820     22.88244
987........................................      -175.24228     22.89342
988........................................      -175.27624     22.90471
989........................................      -175.31009     22.91630
990........................................      -175.34381     22.92820
991........................................      -175.37741     22.94040
992........................................      -175.41089     22.95290
993........................................      -175.44423     22.96571
994........................................      -175.47744     22.97882
995........................................      -175.51051     22.99222
996........................................      -175.54345     23.00593
997........................................      -175.57624     23.01993
998........................................      -175.60888     23.03422
999........................................      -175.64138     23.04881
1000.......................................      -175.67372     23.06370
1001.......................................      -175.70591     23.07887
1002.......................................      -175.73795     23.09434
1003.......................................      -175.76982     23.11009
1004.......................................      -175.81731     23.13426
1005.......................................      -175.84877     23.15073
1006.......................................      -175.88005     23.16748
1007.......................................      -175.91116     23.18451
1008.......................................      -175.94209     23.20183
1009.......................................      -175.98815     23.22832
1010.......................................      -176.01862     23.24633
1011.......................................      -176.04891     23.26461
1012.......................................      -176.09398     23.29254
1013.......................................      -176.12379     23.31150
1014.......................................      -176.15339     23.33073
1015.......................................      -176.18280     23.35022
1016.......................................      -176.21200     23.36998
1017.......................................      -176.25542     23.40011
1018.......................................      -176.28410     23.42052
1019.......................................      -176.31256     23.44119
1020.......................................      -176.35486     23.47268
1021.......................................      -176.38278     23.49399
1022.......................................      -176.41048     23.51554
1023.......................................      -176.43795     23.53735
1024.......................................      -176.46520     23.55940
1025.......................................      -176.50563     23.59294
1026.......................................      -176.53229     23.61560
1027.......................................      -176.55872     23.63850
1028.......................................      -176.59790     23.67330
1029.......................................      -176.62372     23.69679
1030.......................................      -176.66199     23.73246
1031.......................................      -176.68719     23.75653
1032.......................................      -176.71213     23.78082
1033.......................................      -176.73682     23.80534
1034.......................................      -176.76125     23.83007
1035.......................................      -176.78542     23.85503
1036.......................................      -176.80933     23.88021
1037.......................................      -176.83297     23.90559
1038.......................................      -176.85635     23.93119
1039.......................................      -176.87945     23.95700
1040.......................................      -176.90229     23.98302
1041.......................................      -176.93602     24.02243
1042.......................................      -176.96913     24.06229
1043.......................................      -176.99085     24.08911
1044.......................................      -177.01229     24.11613
1045.......................................      -177.03344     24.14334
1046.......................................      -177.06462     24.18450
1047.......................................      -177.08505     24.21218
1048.......................................      -177.10518     24.24004
1049.......................................      -177.12502     24.26808
1050.......................................      -177.14456     24.29630
1051.......................................      -177.17331     24.33895
1052.......................................      -177.19210     24.36760
1053.......................................      -177.21058     24.39642
1054.......................................      -177.22875     24.42540
1055.......................................      -177.25544     24.46918
1056.......................................      -177.27284     24.49856
1057.......................................      -177.28992     24.52810
1058.......................................      -177.30670     24.55779
1059.......................................      -177.32315     24.58763
1060.......................................      -177.33929     24.61762
1061.......................................      -177.36249     24.66210
1062.......................................      -177.38606     24.67081
1063.......................................      -177.41985     24.68359
1064.......................................      -177.45352     24.69667
1065.......................................      -177.48704     24.71005
1066.......................................      -177.53706     24.73067
1067.......................................      -177.57023     24.74479
1068.......................................      -177.60325     24.75920
1069.......................................      -177.63612     24.77391
1070.......................................      -177.66883     24.78890
1071.......................................      -177.71760     24.81194
1072.......................................      -177.74992     24.82767
1073.......................................      -177.78207     24.84367
1074.......................................      -177.81404     24.85997
1075.......................................      -177.83690     24.87185
1076.......................................      -177.88667     24.87745
1077.......................................      -177.94111     24.88429
1078.......................................      -177.97195     24.88850
1079.......................................      -177.99642     24.89200
1080.......................................      -178.05062     24.90028
1081.......................................      -178.10469     24.90929
1082.......................................      -178.14066     24.91569
1083.......................................      -178.16577     24.92034
1084.......................................      -178.21953     24.93078
1085.......................................      -178.27313     24.94194
1086.......................................      -178.32655     24.95380
1087.......................................      -178.37978     24.96637
1088.......................................      -178.43281     24.97965
1089.......................................      -178.48563     24.99363
1090.......................................      -178.53822     25.00832
1091.......................................      -178.59058     25.02370
1092.......................................      -178.61445     25.03096
1093.......................................      -178.64360     25.04005
1094.......................................      -178.67821     25.05115
1095.......................................      -178.70077     25.05859
1096.......................................      -178.72148     25.06052
1097.......................................      -178.75794     25.06420
1098.......................................      -178.81257     25.07031
1099.......................................      -178.86732     25.07718
1100.......................................      -178.90360     25.08214
1101.......................................      -178.93984     25.08742
1102.......................................      -178.98140     25.09383
1103.......................................      -179.01755     25.09959
1104.......................................      -179.07166     25.10883
1105.......................................      -179.10765     25.11539
1106.......................................      -179.14357     25.12227
1107.......................................      -179.19731     25.13318
1108.......................................      -179.25088     25.14480
1109.......................................      -179.28649     25.15295
1110.......................................      -179.32201     25.16141
1111.......................................      -179.35744     25.17018
1112.......................................      -179.38198     25.17642
1113.......................................      -179.43515     25.19048
1114.......................................      -179.47030     25.20018
1115.......................................      -179.50534     25.21020
1116.......................................      -179.55771     25.22581
1117.......................................      -179.60982     25.24211
1118.......................................      -179.66167     25.25910
1119.......................................      -179.69609     25.27081
1120.......................................      -179.73039     25.28283
1121.......................................      -179.76456     25.29514
1122.......................................      -179.79860     25.30776
1123.......................................      -179.83251     25.32068
1124.......................................      -179.86628     25.33389
1125.......................................      -179.89991     25.34741
1126.......................................      -179.93340     25.36122
1127.......................................      -179.96674     25.37533
1128.......................................      -180.00000     25.38976
------------------------------------------------------------------------

Appendix B to Subpart W of Part 922--Coordinates for the Outer 
Sanctuary Zone

[Coordinates listed in this appendix are unprojected (Geographic) 
and based on the North American Datum of 1983]
    The boundaries for the areas listed in this appendix, unless 
otherwise described in this rule, begin at Point 1 as indicated in 
the particular area's coordinate table and continue to each 
successive point in numerical order until ending at the last point 
in the table.

------------------------------------------------------------------------
                 Point No.                      Longitude      Latitude
------------------------------------------------------------------------
1..........................................       180.00000     25.38976
2..........................................       179.99985     25.38982

[[Page 4901]]

 
3..........................................       179.96681     25.40451
4..........................................       179.93392     25.41950
5..........................................       179.90119     25.43477
6..........................................       179.86863     25.45034
7..........................................       179.83622     25.46619
8..........................................       179.78793     25.49050
9..........................................       179.75595     25.50707
10.........................................       179.72415     25.52391
11.........................................       179.69252     25.54104
12.........................................       179.66108     25.55844
13.........................................       179.62981     25.57612
14.........................................       179.59874     25.59408
15.........................................       179.56786     25.61231
16.........................................       179.53716     25.63081
17.........................................       179.50667     25.64959
18.........................................       179.47637     25.66863
19.........................................       179.44627     25.68794
20.........................................       179.41638     25.70751
21.........................................       179.38670     25.72735
22.........................................       179.35722     25.74745
23.........................................       179.32796     25.76781
24.........................................       179.28448     25.79883
25.........................................       179.25576     25.81983
26.........................................       179.22255     25.84463
27.........................................       179.18175     25.87583
28.........................................       179.15383     25.89770
29.........................................       179.12613     25.91982
30.........................................       179.09868     25.94218
31.........................................       179.07146     25.96479
32.........................................       179.03108     25.99915
33.........................................       179.00447     26.02235
34.........................................       178.97810     26.04578
35.........................................       178.93902     26.08137
36.........................................       178.91329     26.10537
37.........................................       178.88781     26.12961
38.........................................       178.86259     26.15407
39.........................................       178.82525     26.19117
40.........................................       178.80068     26.21618
41.........................................       178.77639     26.24141
42.........................................       178.75236     26.26685
43.........................................       178.71684     26.30540
44.........................................       178.69349     26.33136
45.........................................       178.65901     26.37068
46.........................................       178.63637     26.39715
47.........................................       178.61378     26.42409
48.........................................       178.59171     26.45096
49.........................................       178.56993     26.47801
50.........................................       178.54844     26.50526
51.........................................       178.52724     26.53270
52.........................................       178.49600     26.57420
53.........................................       178.46544     26.61611
54.........................................       178.44544     26.64427
55.........................................       178.41601     26.68685
56.........................................       178.39677     26.71544
57.........................................       178.37784     26.74421
58.........................................       178.35922     26.77314
59.........................................       178.34092     26.80223
60.........................................       178.30653     26.85803
61.........................................       178.28885     26.88744
62.........................................       178.26293     26.93184
63.........................................       178.24606     26.96164
64.........................................       178.22951     26.99158
65.........................................       178.21329     27.02166
66.........................................       178.19632     27.05394
67.........................................       178.17402     27.09775
68.........................................       178.15895     27.12831
69.........................................       178.14422     27.15901
70.........................................       178.12274     27.20530
71.........................................       178.10884     27.23631
72.........................................       178.08864     27.28305
73.........................................       178.06920     27.33006
74.........................................       178.05667     27.36154
75.........................................       178.03853     27.40896
76.........................................       178.02687     27.44071
77.........................................       178.01003     27.48851
78.........................................       177.99924     27.52051
79.........................................       177.98881     27.55259
80.........................................       177.97873     27.58477
81.........................................       177.96901     27.61703
82.........................................       177.95509     27.66559
83.........................................       177.94198     27.71432
84.........................................       177.93368     27.74690
85.........................................       177.92568     27.77984
86.........................................       177.91811     27.81256
87.........................................       177.90744     27.86176
88.........................................       177.90079     27.89464
89.........................................       177.89149     27.94406
90.........................................       177.88574     27.97707
91.........................................       177.88037     28.01014
92.........................................       177.87300     28.05982
93.........................................       177.86647     28.10958
94.........................................       177.86258     28.14281
95.........................................       177.85744     28.19271
96.........................................       177.85448     28.22601
97.........................................       177.85073     28.27601
98.........................................       177.84871     28.30936
99.........................................       177.84706     28.34273
100........................................       177.84529     28.39281
101........................................       177.84437     28.44291
102........................................       177.84422     28.47631
103........................................       177.84445     28.50971
104........................................       177.84551     28.55981
105........................................       177.84670     28.59348
106........................................       177.84844     28.63098
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642........................................      -178.61949     29.21593
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664........................................      -179.27400     28.41208
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689........................................      -175.00000     25.83069
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731........................................      -163.58383     19.91207
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733........................................      -163.62957     19.98361
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738........................................      -163.71545     20.12977
739........................................      -163.73841     20.17193
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741........................................      -163.78708     20.19906
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834........................................      -167.74158     20.63068
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1099.......................................      -177.25544     24.46918
1100.......................................      -177.27284     24.49856
1101.......................................      -177.28992     24.52810
1102.......................................      -177.30670     24.55779
1103.......................................      -177.32315     24.58763
1104.......................................      -177.33929     24.61762
1105.......................................      -177.36249     24.66210
1106.......................................      -177.38606     24.67081
1107.......................................      -177.41985     24.68359
1108.......................................      -177.45352     24.69667
1109.......................................      -177.48704     24.71005
1110.......................................      -177.53706     24.73067
1111.......................................      -177.57023     24.74479
1112.......................................      -177.60325     24.75920

[[Page 4906]]

 
1113.......................................      -177.63612     24.77391
1114.......................................      -177.66883     24.78891
1115.......................................      -177.71760     24.81195
1116.......................................      -177.74992     24.82767
1117.......................................      -177.78206     24.84367
1118.......................................      -177.81404     24.85996
1119.......................................      -177.83690     24.87185
1120.......................................      -177.88667     24.87745
1121.......................................      -177.94111     24.88429
1122.......................................      -177.97195     24.88850
1123.......................................      -177.99642     24.89200
1124.......................................      -178.05062     24.90028
1125.......................................      -178.10469     24.90929
1126.......................................      -178.14066     24.91569
1127.......................................      -178.16577     24.92034
1128.......................................      -178.21953     24.93078
1129.......................................      -178.27313     24.94194
1130.......................................      -178.32655     24.95380
1131.......................................      -178.37978     24.96637
1132.......................................      -178.43281     24.97965
1133.......................................      -178.48563     24.99363
1134.......................................      -178.53822     25.00832
1135.......................................      -178.59058     25.02370
1136.......................................      -178.61445     25.03096
1137.......................................      -178.64360     25.04005
1138.......................................      -178.67821     25.05115
1139.......................................      -178.70077     25.05859
1140.......................................      -178.72148     25.06052
1141.......................................      -178.75794     25.06420
1142.......................................      -178.81257     25.07031
1143.......................................      -178.86732     25.07718
1144.......................................      -178.90360     25.08214
1145.......................................      -178.93984     25.08742
1146.......................................      -178.98140     25.09382
1147.......................................      -179.01755     25.09959
1148.......................................      -179.07166     25.10883
1149.......................................      -179.10765     25.11539
1150.......................................      -179.14357     25.12227
1151.......................................      -179.19731     25.13318
1152.......................................      -179.25088     25.14480
1153.......................................      -179.28649     25.15295
1154.......................................      -179.32201     25.16140
1155.......................................      -179.35744     25.17018
1156.......................................      -179.38198     25.17642
1157.......................................      -179.43516     25.19048
1158.......................................      -179.47030     25.20018
1159.......................................      -179.50534     25.21020
1160.......................................      -179.55770     25.22581
1161.......................................      -179.60982     25.24211
1162.......................................      -179.66168     25.25911
1163.......................................      -179.69610     25.27081
1164.......................................      -179.73039     25.28283
1165.......................................      -179.76456     25.29514
1166.......................................      -179.79860     25.30776
1167.......................................      -179.83251     25.32068
1168.......................................      -179.86628     25.33389
1169.......................................      -179.89991     25.34741
1170.......................................      -179.93340     25.36122
1171.......................................      -179.96674     25.37533
1172.......................................      -180.00000     25.38976
------------------------------------------------------------------------

Appendix C to Subpart W of Part 922--Coordinates for the Midway Atoll 
Special Management Area

[Coordinates listed in this appendix are unprojected (Geographic) 
and based on the North American Datum of 1983]
    The boundaries for the areas listed in this appendix, unless 
otherwise described in this rule, begin at Point 1 as indicated in 
the particular area's coordinate table and continue to each 
successive point in numerical order until ending at the last point 
in the table.

------------------------------------------------------------------------
                 Point No.                      Longitude      Latitude
------------------------------------------------------------------------
1..........................................      -177.31267     27.99792
2..........................................      -177.36342     27.99124
3..........................................      -177.41762     27.99216
4..........................................      -177.47082     27.99962
5..........................................      -177.51875     28.01516
6..........................................      -177.55393     28.03661
7..........................................      -177.59424     28.06817
8..........................................      -177.62036     28.10572
9..........................................      -177.64395     28.14862
10.........................................      -177.65507     28.20134
11.........................................      -177.65600     28.21430
12.........................................      -177.65028     28.23674
13.........................................      -177.65187     28.25877
14.........................................      -177.63704     28.29735
15.........................................      -177.62519     28.31624
16.........................................      -177.60768     28.33804
17.........................................      -177.59529     28.36997
18.........................................      -177.56544     28.40418
19.........................................      -177.52661     28.43628
20.........................................      -177.49013     28.46044
21.........................................      -177.44568     28.47591
22.........................................      -177.42409     28.48231
23.........................................      -177.37872     28.48480
24.........................................      -177.32412     28.48128
25.........................................      -177.26570     28.46492
26.........................................      -177.21865     28.44274
27.........................................      -177.17255     28.41268
28.........................................      -177.13782     28.37680
29.........................................      -177.11574     28.33244
30.........................................      -177.08945     28.26879
31.........................................      -177.08725     28.21427
32.........................................      -177.08489     28.17927
33.........................................      -177.09363     28.15669
34.........................................      -177.10914     28.12595
35.........................................      -177.12481     28.09780
36.........................................      -177.15060     28.06781
37.........................................      -177.18677     28.03986
38.........................................      -177.22207     28.02105
39.........................................      -177.26492     28.00572
40.........................................      -177.31267     27.99792
------------------------------------------------------------------------

Appendix D to Subpart W of Part 922--Coordinates for the Special 
Preservation Areas (SPAs)

[Coordinates listed in this appendix are unprojected (Geographic) 
and based on the North American Datum of 1983]

    The boundaries for the areas listed in this appendix, unless 
otherwise described in this rule, begin at Point 1 as indicated in 
the particular area's coordinate table and continue to each 
successive point in numerical order until ending at the last point 
in the table.

     Table 1--Coordinates for H[omacr]lanik[umacr] (Kure Atoll) SPA
------------------------------------------------------------------------
                 Point No.                      Longitude      Latitude
------------------------------------------------------------------------
1..........................................      -178.42982     28.39284
2..........................................      -178.43641     28.39991
3..........................................      -178.44628     28.41516
4..........................................      -178.44829     28.43220
5..........................................      -178.44120     28.45537
6..........................................      -178.43083     28.47814
7..........................................      -178.41324     28.49646
8..........................................      -178.40698     28.50082
9..........................................      -178.39886     28.50648
10.........................................      -178.38081     28.51486
11.........................................      -178.35703     28.51998
12.........................................      -178.33482     28.52195
13.........................................      -178.33480     28.52195
14.........................................      -178.33096     28.52588
15.........................................      -178.32267     28.52960
16.........................................      -178.30753     28.54606
17.........................................      -178.29651     28.54402
18.........................................      -178.28574     28.52279
19.........................................      -178.28205     28.50290
20.........................................      -178.28203     28.50289
21.........................................      -178.27634     28.49938
22.........................................      -178.26090     28.48707
23.........................................      -178.25026     28.47569
24.........................................      -178.24590     28.47103
25.........................................      -178.23869     28.45022
26.........................................      -178.23126     28.41686
27.........................................      -178.23242     28.39706
28.........................................      -178.23826     28.37827
29.........................................      -178.24572     28.36305
30.........................................      -178.24663     28.36228
31.........................................      -178.24665     28.36227
32.........................................      -178.23880     28.35166
33.........................................      -178.22857     28.34386
34.........................................      -178.21418     28.34135
35.........................................      -178.21125     28.32830
36.........................................      -178.21580     28.32098
37.........................................      -178.22682     28.31875
38.........................................      -178.23360     28.32678
39.........................................      -178.26169     28.33216
40.........................................      -178.26256     28.34256
41.........................................      -178.26685     28.34603
42.........................................      -178.26983     28.34386
43.........................................      -178.28608     28.33631
44.........................................      -178.31541     28.33530
45.........................................      -178.36386     28.34022
46.........................................      -178.38109     28.34407
47.........................................      -178.40622     28.32394
48.........................................      -178.42837     28.32125
49.........................................      -178.43274     28.36763
50.........................................      -178.42982     28.39284
------------------------------------------------------------------------


      Table 2--Coordinates for Manawai (Pearl and Hermes Atoll) SPA
------------------------------------------------------------------------
                 Point No.                      Longitude      Latitude
------------------------------------------------------------------------
1..........................................      -176.03652     27.75775
2..........................................      -176.04088     27.76832
3..........................................      -176.04088     27.76832
4..........................................      -176.04830     27.77010
5..........................................      -176.06549     27.78232
6..........................................      -176.03704     27.84094
7..........................................      -176.03441     27.85558
8..........................................      -176.03489     27.87411
9..........................................      -176.02724     27.89274
10.........................................      -176.01285     27.89991
11.........................................      -175.98350     27.91077
12.........................................      -175.98347     27.91080
13.........................................      -175.97662     27.91971
14.........................................      -175.96741     27.92798
15.........................................      -175.95689     27.93510
16.........................................      -175.94636     27.93942
17.........................................      -175.93781     27.94332
18.........................................      -175.92692     27.95035
19.........................................      -175.90613     27.96355
20.........................................      -175.88894     27.97471
21.........................................      -175.87548     27.98165
22.........................................      -175.86046     27.98780
23.........................................      -175.83952     27.99711

[[Page 4907]]

 
24.........................................      -175.82333     28.00466
25.........................................      -175.81383     28.00844
26.........................................      -175.80379     28.01098
27.........................................      -175.79318     28.01152
28.........................................      -175.78174     28.01106
29.........................................      -175.77016     28.01031
30.........................................      -175.76421     28.00935
31.........................................      -175.76418     28.00935
32.........................................      -175.76189     28.01111
33.........................................      -175.73451     28.02165
34.........................................      -175.71502     28.00762
35.........................................      -175.70865     27.98973
36.........................................      -175.70863     27.98971
37.........................................      -175.69833     27.98219
38.........................................      -175.69171     27.97663
39.........................................      -175.68857     27.97399
40.........................................      -175.68160     27.96778
41.........................................      -175.67658     27.96256
42.........................................      -175.67240     27.95558
43.........................................      -175.66795     27.94587
44.........................................      -175.66433     27.93515
45.........................................      -175.66239     27.92393
46.........................................      -175.66156     27.91419
47.........................................      -175.66186     27.89972
48.........................................      -175.66410     27.88349
49.........................................      -175.66915     27.86916
50.........................................      -175.67268     27.85916
51.........................................      -175.67530     27.84825
52.........................................      -175.67894     27.83626
53.........................................      -175.68258     27.82801
54.........................................      -175.68899     27.81801
55.........................................      -175.69097     27.81125
56.........................................      -175.69321     27.80550
57.........................................      -175.69331     27.80524
58.........................................      -175.69713     27.79526
59.........................................      -175.70412     27.78375
60.........................................      -175.70943     27.77649
61.........................................      -175.71351     27.77101
62.........................................      -175.71352     27.77099
63.........................................      -175.71049     27.76347
64.........................................      -175.71993     27.75551
65.........................................      -175.72502     27.75516
66.........................................      -175.72955     27.74921
67.........................................      -175.73541     27.74444
68.........................................      -175.74364     27.73989
69.........................................      -175.75468     27.73513
70.........................................      -175.76640     27.73259
71.........................................      -175.77924     27.73129
72.........................................      -175.79543     27.73023
73.........................................      -175.81639     27.73105
74.........................................      -175.82556     27.73236
75.........................................      -175.83310     27.73358
76.........................................      -175.83756     27.73456
77.........................................      -175.84175     27.73504
78.........................................      -175.84594     27.73228
79.........................................      -175.85277     27.72748
80.........................................      -175.86185     27.72274
81.........................................      -175.87480     27.71713
82.........................................      -175.89491     27.70934
83.........................................      -175.91378     27.70257
84.........................................      -175.92997     27.69926
85.........................................      -175.94532     27.69745
86.........................................      -175.95649     27.69766
87.........................................      -175.96681     27.69937
88.........................................      -175.97685     27.70332
89.........................................      -175.98968     27.71026
90.........................................      -176.00334     27.72044
91.........................................      -176.01701     27.73237
92.........................................      -176.02593     27.74182
93.........................................      -176.02997     27.74680
94.........................................      -176.03178     27.74903
95.........................................      -176.03652     27.75775
------------------------------------------------------------------------


          Table 3--Coordinates for Kapou (Lisianski Island) SPA
------------------------------------------------------------------------
                 Point No.                      Longitude      Latitude
------------------------------------------------------------------------
1..........................................      -173.79069     25.94039
2..........................................      -173.79506     25.91077
3..........................................      -173.79506     25.91077
4..........................................      -173.85089     25.87148
5..........................................      -173.89161     25.87949
6..........................................      -173.94399     25.87998
7..........................................      -174.10879     25.96371
8..........................................      -174.12000     25.97958
9..........................................      -174.14257     26.00021
10.........................................      -174.15729     26.04055
11.........................................      -174.15482     26.12273
12.........................................      -174.13333     26.17497
13.........................................      -174.08554     26.21215
14.........................................      -174.05059     26.21724
15.........................................      -173.98290     26.21243
16.........................................      -173.93333     26.18331
17.........................................      -173.89656     26.14220
18.........................................      -173.86186     26.11938
19.........................................      -173.82229     26.08560
20.........................................      -173.79999     26.04164
21.........................................      -173.76666     26.00831
22.........................................      -173.75210     25.98825
23.........................................      -173.75283     25.97102
24.........................................      -173.79069     25.94039
------------------------------------------------------------------------


           Table 4--Coordinates for Kamole (Laysan Island) SPA
------------------------------------------------------------------------
                 Point No.                      Longitude      Latitude
------------------------------------------------------------------------
1..........................................      -171.65000     25.71667
2..........................................      -171.66667     25.70000
3..........................................      -171.70000     25.69167
4..........................................      -171.70833     25.70000
5..........................................      -171.73333     25.70000
6..........................................      -171.75000     25.69167
7..........................................      -171.78333     25.69167
8..........................................      -171.81667     25.70833
9..........................................      -171.85000     25.75833
10.........................................      -171.86667     25.79167
11.........................................      -171.87500     25.83333
12.........................................      -171.85000     25.86667
13.........................................      -171.83333     25.88333
14.........................................      -171.80000     25.90000
15.........................................      -171.76667     25.90000
16.........................................      -171.67500     25.88333
17.........................................      -171.62500     25.86667
18.........................................      -171.60000     25.83333
19.........................................      -171.59167     25.79167
20.........................................      -171.60000     25.76667
21.........................................      -171.61667     25.74167
22.........................................      -171.63333     25.72500
23.........................................      -171.65000     25.71667
------------------------------------------------------------------------


   Table 5--Coordinates for Kamokuokamohoali[revaps]i (Maro Reef) SPA
------------------------------------------------------------------------
                 Point No.                      Longitude      Latitude
------------------------------------------------------------------------
1..........................................      -170.51714     25.56669
2..........................................      -170.40880     25.46669
3..........................................      -170.35047     25.37502
4..........................................      -170.40880     25.25835
5..........................................      -170.42547     25.25002
6..........................................      -170.54214     25.25835
7..........................................      -170.59214     25.28335
8..........................................      -170.65047     25.30002
9..........................................      -170.76714     25.31669
10.........................................      -170.80047     25.33335
11.........................................      -170.80880     25.35835
12.........................................      -170.86714     25.39169
13.........................................      -170.89214     25.45002
14.........................................      -170.90047     25.52502
15.........................................      -170.90047     25.55002
16.........................................      -170.87547     25.58335
17.........................................      -170.80881     25.62502
18.........................................      -170.77547     25.63335
19.........................................      -170.70880     25.63335
20.........................................      -170.68381     25.61669
21.........................................      -170.57547     25.59169
22.........................................      -170.51714     25.56669
------------------------------------------------------------------------


         Table 6--Coordinates for [revaps][Omacr]n[umacr]nui and
              [revaps][Omacr]nuiki (Gardner Pinnacles) SPA
------------------------------------------------------------------------
                 Point No.                      Longitude      Latitude
------------------------------------------------------------------------
1..........................................      -167.93207     25.06955
2..........................................      -167.92506     25.04175
3..........................................      -167.94165     25.01326
4..........................................      -167.94166     24.94164
5..........................................      -167.92273     24.90603
6..........................................      -167.90123     24.88174
7..........................................      -167.89166     24.84997
8..........................................      -167.89766     24.74763
9..........................................      -167.87266     24.62908
10.........................................      -167.87360     24.59072
11.........................................      -167.86659     24.56315
12.........................................      -167.87500     24.49164
13.........................................      -167.89063     24.44829
14.........................................      -167.90184     24.42844
15.........................................      -167.95440     24.41115
16.........................................      -167.98968     24.41979
17.........................................      -168.00369     24.43801
18.........................................      -168.01666     24.50831
19.........................................      -168.05000     24.57498
20.........................................      -168.08333     24.59164
21.........................................      -168.12500     24.69997
22.........................................      -168.13333     24.77497
23.........................................      -168.15000     24.81664
24.........................................      -168.15000     24.88331
25.........................................      -168.22500     24.94997
26.........................................      -168.26666     25.00831
27.........................................      -168.27799     25.06540
28.........................................      -168.26794     25.09301
29.........................................      -168.25089     25.10375
30.........................................      -168.22575     25.16587
31.........................................      -168.19632     25.18175
32.........................................      -168.14166     25.19164
33.........................................      -168.08636     25.19273
34.........................................      -168.04128     25.17404
35.........................................      -167.98333     25.12498
36.........................................      -167.93207     25.06955
------------------------------------------------------------------------


[[Page 4908]]


        Table 7--Coordinates for Lalo (French Frigate Shoals) SPA
------------------------------------------------------------------------
                 Point No.                      Longitude      Latitude
------------------------------------------------------------------------
1..........................................      -165.58333     23.99997
2..........................................      -165.58333     23.49997
3..........................................      -166.75000     23.66664
4..........................................      -166.92817     23.68779
5..........................................      -166.92756     23.74082
6..........................................      -166.92417     24.03651
7..........................................      -166.75227     24.03400
8..........................................      -166.75000     24.16664
9..........................................      -165.58333     23.99997
------------------------------------------------------------------------


           Table 8--Coordinates for Mokumanamana (Necker) SPA
------------------------------------------------------------------------
                 Point No.                      Longitude      Latitude
------------------------------------------------------------------------
1..........................................      -164.55178     23.64216
2..........................................      -164.53515     23.61324
3..........................................      -164.53018     23.58826
4..........................................      -164.52734     23.55099
5..........................................      -164.50977     23.52283
6..........................................      -164.45148     23.49085
7..........................................      -164.44165     23.48045
8..........................................      -164.39327     23.46288
9..........................................      -164.36812     23.46322
10.........................................      -164.32711     23.44904
11.........................................      -164.30462     23.43128
12.........................................      -164.28233     23.39686
13.........................................      -164.27062     23.35708
14.........................................      -164.25021     23.30870
15.........................................      -164.25676     23.28970
16.........................................      -164.26716     23.27912
17.........................................      -164.27585     23.25682
18.........................................      -164.29815     23.23537
19.........................................      -164.33671     23.23253
20.........................................      -164.36910     23.23801
21.........................................      -164.39560     23.25619
22.........................................      -164.45702     23.26300
23.........................................      -164.47063     23.27037
24.........................................      -164.48333     23.29164
25.........................................      -164.52500     23.30831
26.........................................      -164.59613     23.30887
27.........................................      -164.63036     23.29942
28.........................................      -164.64112     23.30040
29.........................................      -164.63917     23.31377
30.........................................      -164.62971     23.32387
31.........................................      -164.61895     23.32681
32.........................................      -164.62156     23.34246
33.........................................      -164.60917     23.35387
34.........................................      -164.58863     23.40643
35.........................................      -164.57950     23.44490
36.........................................      -164.60558     23.45599
37.........................................      -164.60917     23.46675
38.........................................      -164.62260     23.47995
39.........................................      -164.65117     23.49002
40.........................................      -164.69597     23.49691
41.........................................      -164.73352     23.49654
42.........................................      -164.76980     23.48444
43.........................................      -164.78209     23.50277
44.........................................      -164.79929     23.50920
45.........................................      -164.81081     23.52337
46.........................................      -164.83255     23.53736
47.........................................      -164.84703     23.56743
48.........................................      -164.83436     23.60088
49.........................................      -164.81981     23.61619
50.........................................      -164.80110     23.62243
51.........................................      -164.76840     23.62148
52.........................................      -164.73854     23.63112
53.........................................      -164.68789     23.65058
54.........................................      -164.62458     23.66325
55.........................................      -164.57582     23.65644
56.........................................      -164.55178     23.64216
------------------------------------------------------------------------


                Table 9--Coordinates for Nihoa Island SPA
------------------------------------------------------------------------
                 Point No.                      Longitude      Latitude
------------------------------------------------------------------------
1..........................................      -161.97131     23.09961
2..........................................      -161.97057     23.10037
3..........................................      -161.96981     23.10112
4..........................................      -161.96904     23.10185
5..........................................      -161.96825     23.10258
6..........................................      -161.96745     23.10329
7..........................................      -161.96663     23.10399
8..........................................      -161.96580     23.10468
9..........................................      -161.96495     23.10535
10.........................................      -161.96409     23.10602
11.........................................      -161.96322     23.10667
12.........................................      -161.96234     23.10731
13.........................................      -161.96144     23.10793
14.........................................      -161.96053     23.10854
15.........................................      -161.95961     23.10914
16.........................................      -161.95867     23.10972
17.........................................      -161.95773     23.11029
18.........................................      -161.95677     23.11085
19.........................................      -161.95580     23.11139
20.........................................      -161.95482     23.11191
21.........................................      -161.95383     23.11242
22.........................................      -161.95283     23.11292
23.........................................      -161.95182     23.11340
24.........................................      -161.95080     23.11387
25.........................................      -161.94977     23.11432
26.........................................      -161.94874     23.11475
27.........................................      -161.94769     23.11517
28.........................................      -161.94664     23.11558
29.........................................      -161.94557     23.11597
30.........................................      -161.94450     23.11634
31.........................................      -161.94342     23.11670
32.........................................      -161.94234     23.11704
33.........................................      -161.94125     23.11736
34.........................................      -161.94015     23.11767
35.........................................      -161.93905     23.11796
36.........................................      -161.93794     23.11824
37.........................................      -161.93682     23.11850
38.........................................      -161.93570     23.11874
39.........................................      -161.93458     23.11897
40.........................................      -161.93345     23.11917
41.........................................      -161.93232     23.11937
42.........................................      -161.93118     23.11954
43.........................................      -161.93004     23.11970
44.........................................      -161.92890     23.11984
45.........................................      -161.92775     23.11996
46.........................................      -161.92661     23.12007
47.........................................      -161.92546     23.12016
48.........................................      -161.92431     23.12023
49.........................................      -161.92315     23.12029
50.........................................      -161.92200     23.12032
51.........................................      -161.92085     23.12035
52.........................................      -161.91969     23.12035
53.........................................      -161.91854     23.12034
54.........................................      -161.91739     23.12030
55.........................................      -161.91624     23.12026
56.........................................      -161.91509     23.12019
57.........................................      -161.91394     23.12011
58.........................................      -161.91279     23.12001
59.........................................      -161.91164     23.11989
60.........................................      -161.91050     23.11976
61.........................................      -161.90936     23.11961
62.........................................      -161.90823     23.11944
63.........................................      -161.90709     23.11925
64.........................................      -161.90597     23.11905
65.........................................      -161.90484     23.11883
66.........................................      -161.90372     23.11860
67.........................................      -161.90261     23.11835
68.........................................      -161.90150     23.11808
69.........................................      -161.90040     23.11779
70.........................................      -161.89930     23.11749
71.........................................      -161.89821     23.11717
72.........................................      -161.89713     23.11684
73.........................................      -161.89605     23.11649
74.........................................      -161.89520     23.11619
75.........................................      -161.89498     23.11612
76.........................................      -161.89401     23.11577
77.........................................      -161.89392     23.11574
78.........................................      -161.89287     23.11534
79.........................................      -161.89182     23.11493
80.........................................      -161.89079     23.11450
81.........................................      -161.88976     23.11405
82.........................................      -161.88874     23.11359
83.........................................      -161.88774     23.11311
84.........................................      -161.88674     23.11262
85.........................................      -161.88575     23.11212
86.........................................      -161.88477     23.11160
87.........................................      -161.88381     23.11107
88.........................................      -161.88285     23.11052
89.........................................      -161.88191     23.10995
90.........................................      -161.88097     23.10938
91.........................................      -161.88005     23.10878
92.........................................      -161.87915     23.10818
93.........................................      -161.87825     23.10756
94.........................................      -161.87737     23.10693
95.........................................      -161.87650     23.10628
96.........................................      -161.87564     23.10563
97.........................................      -161.87480     23.10495
98.........................................      -161.87397     23.10427
99.........................................      -161.87316     23.10358
100........................................      -161.87236     23.10287
101........................................      -161.87157     23.10215
102........................................      -161.87080     23.10142
103........................................      -161.87004     23.10067
104........................................      -161.86930     23.09992
105........................................      -161.86858     23.09916
106........................................      -161.86787     23.09838
107........................................      -161.86750     23.09796
108........................................      -161.86718     23.09759
109........................................      -161.86650     23.09679
110........................................      -161.86584     23.09599
111........................................      -161.86520     23.09517
112........................................      -161.86457     23.09435
113........................................      -161.86396     23.09351
114........................................      -161.86337     23.09267
115........................................      -161.86279     23.09181
116........................................      -161.86224     23.09095
117........................................      -161.86170     23.09008
118........................................      -161.86117     23.08920
119........................................      -161.86067     23.08832
120........................................      -161.86018     23.08742
121........................................      -161.85972     23.08653
122........................................      -161.85927     23.08562
123........................................      -161.85884     23.08470
124........................................      -161.85842     23.08378
125........................................      -161.85803     23.08286
126........................................      -161.85766     23.08193
127........................................      -161.85730     23.08099
128........................................      -161.85697     23.08004
129........................................      -161.85665     23.07910
130........................................      -161.85635     23.07814
131........................................      -161.85608     23.07719
132........................................      -161.85582     23.07622

[[Page 4909]]

 
133........................................      -161.85558     23.07526
134........................................      -161.85536     23.07429
135........................................      -161.85516     23.07332
136........................................      -161.85499     23.07235
137........................................      -161.85483     23.07137
138........................................      -161.85469     23.07039
139........................................      -161.85457     23.06941
140........................................      -161.85447     23.06843
141........................................      -161.85439     23.06744
142........................................      -161.85433     23.06645
143........................................      -161.85429     23.06547
144........................................      -161.85428     23.06448
145........................................      -161.85428     23.06349
146........................................      -161.85430     23.06251
147........................................      -161.85434     23.06152
148........................................      -161.85440     23.06053
149........................................      -161.85449     23.05955
150........................................      -161.85459     23.05857
151........................................      -161.85471     23.05758
152........................................      -161.85485     23.05660
153........................................      -161.85502     23.05563
154........................................      -161.85520     23.05465
155........................................      -161.85540     23.05367
156........................................      -161.85562     23.05271
157........................................      -161.85586     23.05174
158........................................      -161.85612     23.05078
159........................................      -161.85641     23.04982
160........................................      -161.85671     23.04887
161........................................      -161.85703     23.04791
162........................................      -161.85736     23.04697
163........................................      -161.85772     23.04603
164........................................      -161.85810     23.04510
165........................................      -161.85850     23.04417
166........................................      -161.85891     23.04324
167........................................      -161.85935     23.04233
168........................................      -161.85980     23.04142
169........................................      -161.86027     23.04051
170........................................      -161.86076     23.03962
171........................................      -161.86126     23.03873
172........................................      -161.86179     23.03785
173........................................      -161.86233     23.03698
174........................................      -161.86289     23.03611
175........................................      -161.86347     23.03525
176........................................      -161.86407     23.03440
177........................................      -161.86468     23.03357
178........................................      -161.86531     23.03274
179........................................      -161.86596     23.03191
180........................................      -161.86662     23.03110
181........................................      -161.86730     23.03031
182........................................      -161.86800     23.02951
183........................................      -161.86871     23.02873
184........................................      -161.86943     23.02796
185........................................      -161.87018     23.02720
186........................................      -161.87094     23.02646
187........................................      -161.87171     23.02572
188........................................      -161.87250     23.02500
189........................................      -161.87330     23.02428
190........................................      -161.87412     23.02358
191........................................      -161.87495     23.02290
192........................................      -161.87579     23.02222
193........................................      -161.87665     23.02156
194........................................      -161.87752     23.02091
195........................................      -161.87841     23.02027
196........................................      -161.87931     23.01965
197........................................      -161.88022     23.01903
198........................................      -161.88114     23.01844
199........................................      -161.88207     23.01786
200........................................      -161.88302     23.01729
201........................................      -161.88398     23.01673
202........................................      -161.88494     23.01619
203........................................      -161.88592     23.01567
204........................................      -161.88691     23.01515
205........................................      -161.88791     23.01466
206........................................      -161.88892     23.01417
207........................................      -161.88994     23.01371
208........................................      -161.89097     23.01326
209........................................      -161.89201     23.01282
210........................................      -161.89306     23.01240
211........................................      -161.89411     23.01200
212........................................      -161.89517     23.01161
213........................................      -161.89624     23.01123
214........................................      -161.89732     23.01088
215........................................      -161.89841     23.01054
216........................................      -161.89950     23.01021
217........................................      -161.90059     23.00990
218........................................      -161.90170     23.00961
219........................................      -161.90281     23.00934
220........................................      -161.90392     23.00908
221........................................      -161.90504     23.00884
222........................................      -161.90617     23.00861
223........................................      -161.90730     23.00840
224........................................      -161.90843     23.00821
225........................................      -161.90875     23.00816
226........................................      -161.90956     23.00803
227........................................      -161.91070     23.00788
228........................................      -161.91185     23.00774
229........................................      -161.91299     23.00761
230........................................      -161.91366     23.00755
231........................................      -161.91414     23.00751
232........................................      -161.91529     23.00742
233........................................      -161.91644     23.00734
234........................................      -161.91759     23.00729
235........................................      -161.91874     23.00725
236........................................      -161.91990     23.00723
237........................................      -161.92105     23.00723
238........................................      -161.92221     23.00724
239........................................      -161.92336     23.00727
240........................................      -161.92336     23.00727
241........................................      -161.92451     23.00732
242........................................      -161.92566     23.00738
243........................................      -161.92681     23.00747
244........................................      -161.92796     23.00757
245........................................      -161.92910     23.00768
246........................................      -161.93024     23.00782
247........................................      -161.93138     23.00797
248........................................      -161.93252     23.00814
249........................................      -161.93365     23.00832
250........................................      -161.93478     23.00852
251........................................      -161.93590     23.00874
252........................................      -161.93702     23.00898
253........................................      -161.93814     23.00923
254........................................      -161.93924     23.00950
255........................................      -161.94035     23.00978
256........................................      -161.94144     23.01008
257........................................      -161.94253     23.01040
258........................................      -161.94362     23.01074
259........................................      -161.94469     23.01109
260........................................      -161.94576     23.01146
261........................................      -161.94682     23.01184
262........................................      -161.94788     23.01224
263........................................      -161.94892     23.01265
264........................................      -161.94996     23.01308
265........................................      -161.95098     23.01352
266........................................      -161.95200     23.01399
267........................................      -161.95301     23.01446
268........................................      -161.95401     23.01495
269........................................      -161.95500     23.01546
270........................................      -161.95597     23.01598
271........................................      -161.95694     23.01651
272........................................      -161.95790     23.01706
273........................................      -161.95884     23.01762
274........................................      -161.95977     23.01820
275........................................      -161.96069     23.01879
276........................................      -161.96160     23.01940
277........................................      -161.96172     23.01948
278........................................      -161.96189     23.01960
279........................................      -161.96250     23.02001
280........................................      -161.96338     23.02065
281........................................      -161.96425     23.02129
282........................................      -161.96510     23.02195
283........................................      -161.96595     23.02262
284........................................      -161.96677     23.02330
285........................................      -161.96759     23.02400
286........................................      -161.96839     23.02471
287........................................      -161.96917     23.02543
288........................................      -161.96995     23.02616
289........................................      -161.97070     23.02690
290........................................      -161.97144     23.02765
291........................................      -161.97217     23.02842
292........................................      -161.97287     23.02920
293........................................      -161.97357     23.02998
294........................................      -161.97424     23.03078
295........................................      -161.97490     23.03159
296........................................      -161.97555     23.03240
297........................................      -161.97617     23.03323
298........................................      -161.97678     23.03406
299........................................      -161.97738     23.03491
300........................................      -161.97795     23.03576
301........................................      -161.97851     23.03662
302........................................      -161.97905     23.03749
303........................................      -161.97957     23.03837
304........................................      -161.98008     23.03926
305........................................      -161.98056     23.04015
306........................................      -161.98103     23.04105
307........................................      -161.98148     23.04196
308........................................      -161.98191     23.04287
309........................................      -161.98232     23.04379
310........................................      -161.98271     23.04472
311........................................      -161.98309     23.04565
312........................................      -161.98344     23.04659
313........................................      -161.98378     23.04753
314........................................      -161.98409     23.04848
315........................................      -161.98439     23.04943
316........................................      -161.98467     23.05039
317........................................      -161.98493     23.05135
318........................................      -161.98516     23.05232
319........................................      -161.98538     23.05329
320........................................      -161.98558     23.05426
321........................................      -161.98576     23.05523
322........................................      -161.98592     23.05621
323........................................      -161.98606     23.05719
324........................................      -161.98618     23.05817
325........................................      -161.98628     23.05915
326........................................      -161.98635     23.06013
327........................................      -161.98641     23.06112
328........................................      -161.98645     23.06211
329........................................      -161.98647     23.06309
330........................................      -161.98647     23.06408
331........................................      -161.98645     23.06507
332........................................      -161.98640     23.06606
333........................................      -161.98634     23.06704
334........................................      -161.98626     23.06803
335........................................      -161.98616     23.06901
336........................................      -161.98603     23.06999
337........................................      -161.98589     23.07097
338........................................      -161.98573     23.07195
339........................................      -161.98555     23.07293
340........................................      -161.98535     23.07390
341........................................      -161.98512     23.07487
342........................................      -161.98488     23.07583
343........................................      -161.98462     23.07680
344........................................      -161.98434     23.07776
345........................................      -161.98404     23.07871

[[Page 4910]]

 
346........................................      -161.98372     23.07966
347........................................      -161.98338     23.08061
348........................................      -161.98302     23.08155
349........................................      -161.98265     23.08248
350........................................      -161.98225     23.08341
351........................................      -161.98183     23.08433
352........................................      -161.98140     23.08525
353........................................      -161.98095     23.08616
354........................................      -161.98048     23.08706
355........................................      -161.97999     23.08796
356........................................      -161.97948     23.08885
357........................................      -161.97896     23.08973
358........................................      -161.97841     23.09060
359........................................      -161.97785     23.09147
360........................................      -161.97727     23.09232
361........................................      -161.97668     23.09317
362........................................      -161.97606     23.09401
363........................................      -161.97543     23.09484
364........................................      -161.97479     23.09566
365........................................      -161.97413     23.09647
366........................................      -161.97345     23.09727
367........................................      -161.97275     23.09806
368........................................      -161.97204     23.09884
369........................................      -161.97131     23.09961
------------------------------------------------------------------------

Appendix E to Subpart W of Part 922--Coordinates for the Ship Reporting 
Area

[Coordinates listed in this appendix are unprojected (Geographic) 
and based on the North American Datum of 1983]

    The Reporting Area Outer Boundary is defined by the following 
geographic coordinates and description as outlined in IMO Resolution 
MSC.279(85) Appendix 1--Outer Boundary adopted on 1 December 2008 
that superseded and amended IMO Resolution MEPC.171(57) adopted on 4 
April 2008.
    The outer boundary of the CORALSHIPREP reporting area consists 
of lines connecting the following geographical positions:
    Starting at (1) 29[deg] 24'.21 N, 178[deg] 06'.45 W;
    A rhumb line to (2) 29[deg] 12'.16 N, 177[deg] 04'.25 W;
    Then a rhumb line to (3) 28[deg] 43'.78 N, 175[deg] 13'.76 W;
    Then a rhumb line to (4) 27[deg] 00'.28 N, 173[deg] 25'.37 W;
    Then a rhumb line to (5) 26[deg] 44'.85 N, 171[deg] 28'.22 W;
    Then a rhumb line to (6) 26[deg] 23'.95 N, 170[deg] 20'.25 W;
    Then a rhumb line to (7) 25[deg] 56'.49 N, 167[deg] 32'.03 W;
    Then a rhumb line to (8) 24[deg] 50'.23 N, 165[deg] 58'.56 W;
    Then a rhumb line to (9) 24[deg] 02'.61 N, 161[deg] 42'.30 W;
    Then an arc with a 60.25 nm radius centered at (21) 23[deg] 
03'.61 N, 161[deg] 55'.22 W;
    To a point (10) 22[deg] 04'.59 N, 162[deg] 08'.14 W;
    Then a rhumb line to (11) 22[deg] 35'.32 N, 164[deg] 53'.46 W;
    Then a rhumb line to (12) 22[deg] 47'.86 N, 166[deg] 40'.44 W;
    Then a rhumb line to (13) 24[deg] 03'.30 N, 168[deg] 27'.53 W;
    Then a rhumb line to (14) 24[deg] 26'.59 N, 170[deg] 50'.37 W;
    Then a rhumb line to (15) 24[deg] 46'.49 N, 171[deg] 52'.87 W;
    Then a rhumb line to (16) 25[deg] 07'.23 N, 174[deg] 30'.23 W;
    Then a rhumb line to (17) 27[deg] 05'.50 N, 176[deg] 35'.40 W;
    Then a rhumb line to (18) 27[deg] 15'.11 N, 177[deg] 35'.26 W;
    Then a rhumb line to (19) 27[deg] 26'.10 N, 178[deg] 32'.23 W;
    Then an arc with a 60.17 nm radius centered at (20) 28[deg] 
25'.23 N, 178[deg] 19'.51 W;
    Then to point (1) 29[deg] 24'.21 N, 178[deg] 06'.45 W.
    The boundaries for the Inner Reporting Areas listed in this 
appendix, unless otherwise described in this rule, begin at Point 1 
as indicated in the particular area's coordinate table and continue 
to each successive point in numerical order until ending at the last 
point in the table.

    Table 1--Coordinates of the Inner Reporting Area Boundary Around
  H[omacr]lanik[umacr] (Kure Atoll), Kuaihelani (Midway Atoll), Manawai
           (Pearl and Hermes Atoll) Area To Be Avoided (ATBA)
------------------------------------------------------------------------
                 Point No.                      Longitude      Latitude
------------------------------------------------------------------------
1..........................................      -175.78700     27.01217
2..........................................      -175.87900     27.01133
3..........................................      -175.96933     27.01817
4..........................................      -176.05883     27.03317
5..........................................      -176.14683     27.05567
6..........................................      -176.23183     27.08533
7..........................................      -176.31317     27.12283
8..........................................      -176.39000     27.16633
9..........................................      -176.46233     27.21700
10.........................................      -176.47833     27.22950
11.........................................      -176.49783     27.24600
12.........................................      -177.55517     27.41583
13.........................................      -178.49833     27.59783
14.........................................      -178.56550     27.61067
15.........................................      -178.62200     27.62550
16.........................................      -178.67750     27.64333
17.........................................      -178.73167     27.66417
18.........................................      -178.78417     27.68800
19.........................................      -178.83500     27.71483
20.........................................      -178.88383     27.74433
21.........................................      -178.93050     27.77650
22.........................................      -178.97483     27.81117
23.........................................      -179.01667     27.84817
24.........................................      -179.05650     27.88700
25.........................................      -179.09350     27.92817
26.........................................      -179.12683     27.97150
27.........................................      -179.15783     28.01683
28.........................................      -179.18500     28.06350
29.........................................      -179.20883     28.11183
30.........................................      -179.22917     28.16117
31.........................................      -179.24583     28.21167
32.........................................      -179.25900     28.26300
33.........................................      -179.26850     28.31517
34.........................................      -179.27417     28.36733
35.........................................      -179.27600     28.41200
36.........................................      -179.27617     28.42000
37.........................................      -179.27600     28.43017
38.........................................      -179.27400     28.47250
39.........................................      -179.26833     28.52483
40.........................................      -179.25900     28.57683
41.........................................      -179.24583     28.62817
42.........................................      -179.22900     28.67850
43.........................................      -179.20900     28.72800
44.........................................      -179.18550     28.77633
45.........................................      -179.15867     28.82317
46.........................................      -179.12833     28.86850
47.........................................      -179.09500     28.91200
48.........................................      -179.05850     28.95350
49.........................................      -179.01917     28.99300
50.........................................      -178.97700     29.03017
51.........................................      -178.93217     29.06500
52.........................................      -178.88500     29.09717
53.........................................      -178.83550     29.12667
54.........................................      -178.78400     29.15350
55.........................................      -178.73067     29.17733
56.........................................      -178.67567     29.19817
57.........................................      -178.61933     29.21583
58.........................................      -178.56183     29.23033
59.........................................      -178.50350     29.24167
60.........................................      -178.44433     29.24983
61.........................................      -178.38467     29.25467
62.........................................      -178.32483     29.25600
63.........................................      -178.26500     29.25417
64.........................................      -178.20533     29.24900
65.........................................      -178.14633     29.24050
66.........................................      -177.20117     29.05783
67.........................................      -177.12150     29.04250
68.........................................      -175.59117     28.64933
69.........................................      -175.57250     28.64450
70.........................................      -175.32900     28.58183
71.........................................      -175.17750     28.43733
72.........................................      -175.14917     28.41017
73.........................................      -175.15067     28.40883
74.........................................      -175.08183     28.33483
75.........................................      -175.03200     28.26750
76.........................................      -174.98883     28.19633
77.........................................      -174.95383     28.12150
78.........................................      -174.92800     28.04383
79.........................................      -174.91033     27.96400
80.........................................      -174.90083     27.88350
81.........................................      -174.90083     27.80200
82.........................................      -174.91033     27.72133
83.........................................      -174.92850     27.64133
84.........................................      -174.95533     27.56350
85.........................................      -174.99050     27.48833
86.........................................      -175.03383     27.41667
87.........................................      -175.08450     27.34883
88.........................................      -175.14317     27.28633
89.........................................      -175.20783     27.22883
90.........................................      -175.27783     27.17650
91.........................................      -175.35417     27.13133
92.........................................      -175.43483     27.09283
93.........................................      -175.51917     27.06100
94.........................................      -175.60667     27.03700
95.........................................      -175.69633     27.02150
96.........................................      -175.78700     27.01217
------------------------------------------------------------------------


[[Page 4911]]


    Table 2--Coordinates for the Inner Reporting Area Boundary Around
   `[Otilde]n[utilde]nui and `[Otilde]nuiki (Gardner Pinnacles), Lalo
           (French Frigate Shoals), Mokumanamana (Necker) ATBA
------------------------------------------------------------------------
                 Point No.                      Longitude      Latitude
------------------------------------------------------------------------
1..........................................      -168.00150     25.83633
2..........................................      -167.87767     25.82733
3..........................................      -167.87750     25.82833
4..........................................      -167.80583     25.81650
5..........................................      -167.61200     25.78483
6..........................................      -167.44133     25.66400
7..........................................      -167.32983     25.58500
8..........................................      -166.75000     25.17383
9..........................................      -166.05600     24.68183
10.........................................      -165.58317     24.59400
11.........................................      -164.51867     24.39633
12.........................................      -164.51900     24.39317
13.........................................      -164.49567     24.38850
14.........................................      -164.40867     24.36417
15.........................................      -164.32317     24.33500
16.........................................      -164.24267     24.29583
17.........................................      -164.16617     24.24983
18.........................................      -164.09483     24.19767
19.........................................      -164.03000     24.13833
20.........................................      -163.97050     24.07467
21.........................................      -163.92033     24.00450
22.........................................      -163.87650     23.93083
23.........................................      -163.84267     23.85283
24.........................................      -163.81633     23.77217
25.........................................      -163.79983     23.68950
26.........................................      -163.79267     23.60567
27.........................................      -163.79333     23.52117
28.........................................      -163.80467     23.43783
29.........................................      -163.82500     23.35567
30.........................................      -163.85233     23.27550
31.........................................      -163.89117     23.19933
32.........................................      -163.93583     23.12567
33.........................................      -163.98967     23.05767
34.........................................      -164.05017     22.99417
35.........................................      -164.11833     22.93783
36.........................................      -164.19150     22.88700
37.........................................      -164.26967     22.84333
38.........................................      -164.35267     22.80800
39.........................................      -164.43800     22.77883
40.........................................      -164.52667     22.75817
41.........................................      -164.61717     22.74717
42.........................................      -164.70850     22.74417
43.........................................      -164.79983     22.74867
44.........................................      -164.82533     22.75183
45.........................................      -164.85800     22.75650
46.........................................      -164.85883     22.75283
47.........................................      -165.58317     22.83767
48.........................................      -166.32717     22.92500
49.........................................      -166.38867     22.93217
50.........................................      -166.60000     22.95683
51.........................................      -166.75000     23.06250
52.........................................      -166.79083     23.09133
53.........................................      -168.38100     24.21167
54.........................................      -168.37967     24.21467
55.........................................      -168.45467     24.26750
56.........................................      -168.52767     24.31917
57.........................................      -168.59917     24.37117
58.........................................      -168.66567     24.42850
59.........................................      -168.72583     24.49183
60.........................................      -168.77717     24.56117
61.........................................      -168.82150     24.63433
62.........................................      -168.85767     24.71133
63.........................................      -168.88533     24.79083
64.........................................      -168.90467     24.87233
65.........................................      -168.91367     24.95533
66.........................................      -168.91583     25.03867
67.........................................      -168.90717     25.12167
68.........................................      -168.88867     25.20317
69.........................................      -168.86267     25.28317
70.........................................      -168.82667     25.35950
71.........................................      -168.78217     25.43233
72.........................................      -168.73100     25.50150
73.........................................      -168.67367     25.56483
74.........................................      -168.60867     25.62283
75.........................................      -168.53733     25.67483
76.........................................      -168.46133     25.72067
77.........................................      -168.38033     25.75950
78.........................................      -168.29600     25.79050
79.........................................      -168.20783     25.81317
80.........................................      -168.11817     25.82867
81.........................................      -168.02700     25.83517
82.........................................      -168.00150     25.83633
------------------------------------------------------------------------


 Table 3--Coordinates for Inner Reporting Area Boundary Around the Kapou
  (Lisianski Island), Kamole (Laysan Island), Kamokuokamohoali`i (Maro
                         Reef), Raita Bank ATBA
------------------------------------------------------------------------
                 Point No.                      Longitude      Latitude
------------------------------------------------------------------------
1..........................................      -173.56150     26.85217
2..........................................      -173.51450     26.84583
3..........................................      -173.51317     26.84817
4..........................................      -171.62833     26.60000
5..........................................      -171.56400     26.59150
6..........................................      -171.51400     26.58500
7..........................................      -171.45833     26.56783
8..........................................      -171.41933     26.55583
9..........................................      -170.38400     26.23767
10.........................................      -169.81600     26.14483
11.........................................      -169.81717     26.13933
12.........................................      -169.76383     26.12700
13.........................................      -169.67617     26.10050
14.........................................      -169.59400     26.06617
15.........................................      -169.51517     26.02517
16.........................................      -169.44083     25.97750
17.........................................      -169.37233     25.92200
18.........................................      -169.31000     25.86117
19.........................................      -169.25317     25.79633
20.........................................      -169.20567     25.72567
21.........................................      -169.16550     25.65083
22.........................................      -169.13467     25.57283
23.........................................      -169.11267     25.49233
24.........................................      -169.09883     25.41017
25.........................................      -169.09400     25.32717
26.........................................      -169.09883     25.24417
27.........................................      -169.11100     25.16150
28.........................................      -169.13367     25.08083
29.........................................      -169.16600     25.00283
30.........................................      -169.20583     24.92767
31.........................................      -169.25233     24.85583
32.........................................      -169.30800     24.78950
33.........................................      -169.37033     24.72817
34.........................................      -169.43850     24.67233
35.........................................      -169.51300     24.62367
36.........................................      -169.59400     24.58333
37.........................................      -169.67767     24.55033
38.........................................      -169.76467     24.52233
39.........................................      -169.85133     24.50517
40.........................................      -169.94217     24.49467
41.........................................      -170.03017     24.49267
42.........................................      -170.07617     24.49350
43.........................................      -170.73983     24.59617
44.........................................      -170.79300     24.60483
45.........................................      -170.83950     24.61967
46.........................................      -170.86950     24.62933
47.........................................      -171.83650     24.93717
48.........................................      -174.41400     25.27683
49.........................................      -174.64083     25.49267
50.........................................      -174.70050     25.55467
51.........................................      -174.75333     25.62217
52.........................................      -174.79733     25.69467
53.........................................      -174.83417     25.77050
54.........................................      -174.86283     25.84883
55.........................................      -174.88183     25.93000
56.........................................      -174.89117     26.01183
57.........................................      -174.89350     26.09450
58.........................................      -174.88450     26.17650
59.........................................      -174.86800     26.25767
60.........................................      -174.84283     26.33667
61.........................................      -174.80733     26.41250
62.........................................      -174.76567     26.48583
63.........................................      -174.71600     26.55433
64.........................................      -174.65817     26.61850
65.........................................      -174.59383     26.67667
66.........................................      -174.52383     26.72917
67.........................................      -174.44783     26.77483
68.........................................      -174.36817     26.81500
69.........................................      -174.28383     26.84650
70.........................................      -174.19650     26.87000
71.........................................      -174.10717     26.88683
72.........................................      -174.01633     26.89567
73.........................................      -173.92467     26.89567
74.........................................      -173.83367     26.88817
75.........................................      -173.74300     26.87600
76.........................................      -173.65233     26.86417
77.........................................      -173.56150     26.85217
------------------------------------------------------------------------


 Table 4--Coordinates for the Inner Reporting Area Boundary Around Nihoa
                                  ATBA
------------------------------------------------------------------------
                 Point No.                      Longitude      Latitude
------------------------------------------------------------------------
1..........................................      -161.78483     23.88033
2..........................................      -161.74450     23.87317
3..........................................      -161.74233     23.88033
4..........................................      -161.68667     23.86833
5..........................................      -161.63200     23.85300
6..........................................      -161.57850     23.83467
7..........................................      -161.52633     23.81317
8..........................................      -161.47583     23.78883
9..........................................      -161.42700     23.76150
10.........................................      -161.38017     23.73133
11.........................................      -161.33550     23.69867
12.........................................      -161.29333     23.66333
13.........................................      -161.25350     23.62567
14.........................................      -161.21650     23.58567
15.........................................      -161.18217     23.54367
16.........................................      -161.15083     23.49983

[[Page 4912]]

 
17.........................................      -161.12250     23.45417
18.........................................      -161.09750     23.40700
19.........................................      -161.07567     23.35850
20.........................................      -161.05717     23.30867
21.........................................      -161.04217     23.25800
22.........................................      -161.03067     23.20650
23.........................................      -161.02250     23.15450
24.........................................      -161.01817     23.10217
25.........................................      -161.01717     23.04950
26.........................................      -161.01983     22.99700
27.........................................      -161.02617     22.94483
28.........................................      -161.03583     22.89300
29.........................................      -161.04917     22.84183
30.........................................      -161.06583     22.79167
31.........................................      -161.08583     22.74250
32.........................................      -161.10900     22.69450
33.........................................      -161.13550     22.64800
34.........................................      -161.16500     22.60317
35.........................................      -161.19750     22.56017
36.........................................      -161.23283     22.51900
37.........................................      -161.27083     22.48017
38.........................................      -161.31150     22.44350
39.........................................      -161.35433     22.40933
40.........................................      -161.39950     22.37767
41.........................................      -161.44667     22.34867
42.........................................      -161.49567     22.32250
43.........................................      -161.54633     22.29917
44.........................................      -161.59833     22.27883
45.........................................      -161.65167     22.26167
46.........................................      -161.70617     22.24750
47.........................................      -161.76133     22.23667
48.........................................      -161.81717     22.22883
49.........................................      -161.87350     22.22450
50.........................................      -161.93000     22.22333
51.........................................      -161.98633     22.22550
52.........................................      -162.04250     22.23083
53.........................................      -162.09083     22.23850
54.........................................      -162.09817     22.23950
55.........................................      -162.11467     22.24317
56.........................................      -162.20300     22.26450
57.........................................      -162.28850     22.29500
58.........................................      -162.37000     22.33283
59.........................................      -162.44733     22.37883
60.........................................      -162.51917     22.43133
61.........................................      -162.58483     22.49017
62.........................................      -162.64350     22.55467
63.........................................      -162.69533     22.62450
64.........................................      -162.73900     22.69883
65.........................................      -162.77450     22.77717
66.........................................      -162.80083     22.85800
67.........................................      -162.81817     22.94100
68.........................................      -162.82633     23.02500
69.........................................      -162.82483     23.10967
70.........................................      -162.81483     23.19350
71.........................................      -162.79500     23.27617
72.........................................      -162.76633     23.35600
73.........................................      -162.72917     23.43367
74.........................................      -162.68350     23.50667
75.........................................      -162.63050     23.57517
76.........................................      -162.56967     23.63767
77.........................................      -162.50300     23.69483
78.........................................      -162.42983     23.74533
79.........................................      -162.35183     23.78933
80.........................................      -162.26933     23.82583
81.........................................      -162.18317     23.85400
82.........................................      -162.09383     23.87400
83.........................................      -162.00417     23.88567
84.........................................      -161.91250     23.88933
85.........................................      -161.82133     23.88483
86.........................................      -161.78483     23.88033
------------------------------------------------------------------------

Appendix F to Subpart W of Part 922--IMO Standard Reporting Format and 
Data Syntax for Ship Reporting System

------------------------------------------------------------------------
                    Function       Information required   Example field
               -----------------------------------------       text
  Telegraphy                                            ----------------
                     System          CORAL SHIPREP //    CORAL SHIPREP //
                   identifier
------------------------------------------------------------------------
A               Ship............  Vessel name/call sign/ A/OCEAN VOYAGER/
                                   flag/IMO number/       C5FU8/BAHAMAS/
                                   Federal                IMO 9359165/.
                                   documentation or
                                   State registration
                                   number if applicable
                                   //.
B               Date, time        A 6-digit group        B/271107Z DEC//
                 (UTC), and        giving day of month    .
                 month of entry.   (first two digits),
                                   hours and minutes
                                   (last four digits)
                                   in coordinated
                                   universal time,
                                   suffixed by the
                                   letter Z (indicating
                                   time in UTC), and
                                   three letters
                                   indicating month //.
C               Position........  A 4-digit group        C/2728N/17356W//
                                   giving latitude in     .
                                   degrees and minutes,
                                   suffixed with the
                                   letter N (indicating
                                   north), followed by
                                   a single /, and a
                                   five-digit group
                                   giving longitude in
                                   degrees and minutes,
                                   suffixed with the
                                   letter W (indicating
                                   west) // [Report in
                                   the World Geodetic
                                   System 1984 Datum
                                   (WGS-84)].
E               True course.....  3-digit number         E/180//.
                                   indicating true
                                   course //.
F               Speed in knots    3-digit group          F/20.5//.
                 and tenths.       indicating knots
                                   decimal tenths //.
I               Destination and   Name of port city/     I/SEATTLE/USA/
                 estimated time    country/estimated      311230Z DEC//.
                 of arrival.       arrival date and
                                   time group expressed
                                   as in (B) //.
L               Intended route    Route information      L/RL/215/20.5//
                 through the re-   should be reported    -OR-
                 porting area.     as a direct           L/WP/2734N/
                                   rhumbline (RL)         17352W/20.5//
                                   course through the    L/WP/2641N/
                                   reporting area and     17413W/20.5//
                                   intended speed        L/WP/2605N/
                                   (expressed as in E     17530W/20.5//.
                                   and F) or a series
                                   of waypoints (WP).
                                   Each waypoint entry
                                   should be reported
                                   as latitude and
                                   longitude, expressed
                                   as in (C), and
                                   intended speed be-
                                   tween waypoints (as
                                   in F) // (Note: As
                                   many ``L'' lines as
                                   needed may be used
                                   to describe the
                                   vessel's intended
                                   route.).
O               Vessel draft in   Maximum present        O/11.50//.
                 meters.           static draft
                                   reported in meters
                                   decimal centimeters /
                                   /.
P               Categories of     Classification Code    P/IMDG/
                 Hazardous         (e.g., IMDG, IBC,      1.4G,2.1,2.2,2
                 Cargoes *.        IGC, INF) / and all    .3,
                                   corresponding          3,4.1,6.1,8,9//
                                   Categories of          .
                                   Hazardous Cargoes
                                   (delimited by
                                   commas) // Note: If
                                   necessary, use a
                                   separate ``P'' line
                                   for each type of
                                   Classification Code.
Q               Defects or        Brief details of       Q/Include
                 deficiencies **.  defects, damage,       details as
                                   deficiencies or        required//.
                                   limitations that
                                   restrict
                                   maneuverability or
                                   impair normal
                                   navigation // (If
                                   none, enter the
                                   number zero.).
R               Pollution         Description of         R/0//.
                 incident or       pollution incident
                 goods lost        or goods lost
                 overboard **.     overboard with- in
                                   the Monument, the
                                   Reporting Area, or
                                   the U.S. Exclusive
                                   Economic Zone// (If
                                   none, enter the
                                   number zero.).
T               Contact           Name/address/and       T/JOHN DOE/
                 information of    phone number of        GENERIC
                 ship's agent or   ship's agent or        SHIPPING
                 owner.            owner //.              COMPANY INC,
                                                          6101 ACME
                                                          ROAD, ROOM
                                                          123, CITY,
                                                          STATE, COUNTRY
                                                          12345/123-123-
                                                          1234//.

[[Page 4913]]

 
U               Ship size         Length overall         U/294.14/54592/
                 (length overall   reported in meters     CONTAINER SHIP/
                 and gross         decimal centimeters/   /.
                 tonnage) and      number of gross tons/
                 type.             type of ship (e.g.,
                                   bulk carrier,
                                   chemical tanker, oil
                                   tanker, gas tanker,
                                   container, general
                                   cargo, fishing
                                   vessel, research,
                                   passenger, OBO,
                                   RORO) //.
W               Persons.........  Total number of        W/15//.
                                   persons on board //.
------------------------------------------------------------------------
Table Notes:
* Categories of hazardous cargoes means goods classified in the
  International Maritime Dangerous Goods (IMDG) Code; substances
  classified in chapter 17 of the International Code for the
  Construction and Equipment of Ships Carrying Dangerous Chemicals in
  Bulk (IBC Code) and chapter 19 of the International Code for the
  Construction and Equipment of Ships Carrying Liquefied Gases in Bulk
  (IGC Code); oils as defined in MARPOL Annex I; noxious liquid
  substances as defined in MARPOL Annex II; harmful substances as
  defined in MARPOL Annex III; and radioactive materials specified in
  the Code for the Safe Carriage of the Irradiated Nuclear Fuel,
  Plutonium and High-Level Radioactive Wastes in Flasks on Board Ships
  (INF Code).
** In accordance with the provisions of the MARPOL Convention, ships
  must report information relating to defects, damage, deficiencies or
  other limitations as well as, if necessary, information relating to
  pollution incidents or loss of cargo. Safety related reports must be
  provided to CORAL SHIPREP without delay should a ship suffer damage,
  failure or breakdown affecting the safety of the ship (Item Q), or if
  a ship makes a marked deviation from a route, course or speed
  previously advised (Item L). Pollution or cargo lost overboard must be
  reported without delay (Item R).


[FR Doc. 2024-30576 Filed 1-15-25; 8:45 am]
BILLING CODE 3510-NK-P`