[Federal Register Volume 75, Number 200 (Monday, October 18, 2010)]
[Proposed Rules]
[Pages 63786-63791]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2010-26198]
[[Page 63786]]
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DEPARTMENT OF COMMERCE
National Oceanic and Atmospheric Administration
50 CFR Part 622
[Docket No. 100806332-0491-01]
RIN 0648-BA02
Fisheries of the Caribbean, Gulf of Mexico, and South Atlantic;
Reef Fish Fishery of the Gulf of Mexico; Gag Grouper Management
Measures
AGENCY: National Marine Fisheries Service (NMFS), National Oceanic and
Atmospheric Administration (NOAA), Commerce.
ACTION: Proposed temporary rule; request for comments.
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SUMMARY: NMFS issues this proposed temporary rule that would implement
interim measures to reduce overfishing of gag in the Gulf of Mexico
(Gulf). This proposed rule would reduce the commercial quota for gag
and, thus, the combined commercial quota for shallow-water grouper
species (SWG), prohibit recreational harvest of gag, and suspend red
grouper multi-use allocation in the Gulf grouper and tilefish
individual fishing quota (IFQ) program, as requested by the Gulf of
Mexico Fishery Management Council (Council). The intended effect of
this proposed rule is to reduce overfishing of the gag resource in the
Gulf.
DATES: Written comments must be received on or before November 2, 2010.
ADDRESSES: You may submit comments on the proposed rule identified by
NOAA-NMFS-2010-0168 by any of the following methods:
Electronic submissions: Submit electronic comments via the
Federal e-Rulemaking Portal: http://www.regulations.gov. Follow the
instructions for submitting comments.
Mail: Peter Hood, Southeast Regional Office, NMFS, 263
13th Avenue South, St. Petersburg, FL 33701.
Instructions: No comments will be posted for public viewing until
after the comment period has closed. All comments received are a part
of the public record and will generally be posted to http://www.regulations.gov without change. All Personal Identifying
Information (for example, name, address, etc.) voluntarily submitted by
the commenter may be publicly accessible. Do not submit Confidential
Business Information or otherwise sensitive or protected information.
NMFS will accept anonymous comments (enter N/A in the required
field if you wish to remain anonymous). You may submit attachments to
electronic comments in Microsoft Word, Excel, WordPerfect, or Adobe PDF
file formats only.
Comments received through means not specified in this rule will not
be considered.
Copies of documents supporting this proposed rule, which include an
environmental assessment and an initial regulatory flexibility analysis
(IRFA), may be obtained from Peter Hood, Southeast Regional Office,
NMFS, 263 13th Avenue South, St. Petersburg, FL 33701.
FOR FURTHER INFORMATION CONTACT: Peter Hood, telephone: 727-824-5305 or
e-mail: [email protected].
SUPPLEMENTARY INFORMATION: The reef fish fishery of the Gulf of Mexico
is managed under the FMP. The FMP was prepared by the Council and is
implemented through regulations at 50 CFR part 622 under the authority
of the Magnuson-Stevens Fishery Conservation and Management Act
(Magnuson-Stevens Act).
Background
The Magnuson-Stevens Act requires NMFS and regional fishery
management councils to prevent overfishing and achieve, on a continuing
basis, the optimum yield (OY) from Federally managed fish stocks. These
mandates are intended to ensure fishery resources are managed for the
greatest overall benefit to the nation, particularly with respect to
providing food production and recreational opportunities, and
protecting marine ecosystems. To further this goal, the Magnuson-
Stevens Act requires fishery managers to end overfishing of stocks
while achieving, on a continuing basis, the OY from each fishery, and
to minimize bycatch and bycatch mortality to the extent practicable.
In a letter dated August 11, 2009, NMFS informed the Council that
gag are overfished and undergoing overfishing. Under section 304(e) of
the Magnuson-Stevens Act, after a Council has been notified of a
stock's overfishing status, a fishery management plan or plan amendment
must be developed and implemented within two years of notification, to
end overfishing and rebuild the stock. The Council is currently
developing Amendment 32 to the FMP which includes measures to end
overfishing of gag and establish a rebuilding plan for the gag stock.
However, because Amendment 32, if approved, would not likely be
implemented until late 2011 or the beginning of 2012, this temporary
rule contains management measures intended to address overfishing of
gag on an interim basis. NMFS proposes a reduced commercial quota for
gag of 100,000 lb (45,359 kg), a reduced commercial SWG quota of 4.83
million lb (2.19 million kg), a suspension of red grouper multi-use
shares in the Gulf grouper and tilefish IFQ program, and a prohibition
on the recreational harvest of gag. These measures will remain in
effect for 180 days, with the possibility of extending for another 186
days, unless amended by subsequent rulemaking.
Status of Stock
The Southeast Data, Assessment, and Review (SEDAR) update
assessment for gag was conducted in April 2009, with the objective of
updating the 2006 SEDAR 10 gag benchmark assessment. Data sources for
the update assessment included both fishery-dependent and fishery-
independent data through 2008. The Council's Scientific and Statistical
Committee (SSC) recommended a model that allows the natural mortality
rate from 2005, a year when there was an extensive red tide event along
the West Florida Shelf, to adjust above the base natural mortality
rate. This corresponds to an 18-percent mortality rate. The SSC
recommended an acceptable biological catch (ABC) of 1.17 million lb
(0.53 million kg) which is the 2011 yield estimated by the fishing
mortality rate (F) needed to rebuild the stock in 10 years.
In the course of developing management alternatives for gag,
potential inconsistencies in commercial and recreational estimates of
discards were discovered. Preliminary estimates of commercial gag
discards provided by NOAA's Southeast Fisheries Science Center (SEFSC)
indicated commercial discards were two orders of magnitude greater when
estimated using reef fish observer data compared with methods used in
the SEDAR update assessment for the stock. Additionally, size and age
distributions computed for recreational discards in the update
assessment indicated most discards were close to the minimum size limit
in more recent years. However, Mote Marine Laboratory tagging data and
headboat and Florida Fish and Wildlife Conservation Commission observer
data indicated a broader size range for discarded fish. The Council
discussed these discrepancies at their August 2010 meeting and agreed
that another review of the gag assessment would be conducted in the
fall or winter of 2010 to address these discrepancies. Therefore, NMFS
anticipates a subsequent rulemaking after the review
[[Page 63787]]
has been completed based on revised assessment information.
A red grouper update assessment was conducted at same time as the
gag update assessment. Because of the difference in how recreational
discard size distributions were estimated between the assessments, the
discrepancies in discard information did not trigger the same concerns
for red grouper. Therefore, the Council did not make a similar request
for the red grouper assessment to be reviewed. However, the Council did
recognize the effects discard estimation could have on the assessment
and, therefore, requested the SEFSC to review observer discard
information to determine the magnitude of these effects for red
grouper.
Grouper and Tilefish IFQ Program
The commercial sector is currently managed under an IFQ program
implemented in January 2010. Under this program, each qualifying
fisherman was allocated IFQ shares based on historical participation in
the grouper and tilefish component of the Gulf reef fish fishery. Each
year, fishermen receive allocation based on the current quota and the
amount of shares each holds. To allow for flexibility and to reduce
bycatch, at the beginning of each fishing year, a percentage of each
fisherman's gag and red grouper allocations are designated as multi-use
allocations. The IFQ program designates 4 percent of red grouper
allocation and 8 percent of gag allocation to multi-use allocation. Red
grouper multi-use allocation is allocation that may be used to harvest
red grouper after all of an IFQ account holder's (shareholder or
allocation holder's) red grouper allocation has been used or
transferred; and to harvest gag after both gag and gag multi-use
allocation has been used or transferred. Gag multi-use allocation is
allocation that may be used to harvest gag after all of an IFQ account
holder's (shareholder or allocation holder's) gag allocation has been
used or transferred; and to harvest red grouper after both red grouper
and red grouper multi-use allocation has been used or transferred.
However, using all of the current red grouper multi-use allocations to
harvest gag, alone could result in gag commercial landings exceeding
the quota. This action does not reduce the overall red grouper
allocation but will prohibit the conversion of red grouper multi-use
allocation that could lead to additional gag landings.
Management Measures Contained in This Proposed Rule
This interim rule would reduce the commercial quota for gag to
100,000 lb (45,359 kg). This quota would be released at the beginning
of the 2011 fishing year so IFQ participants would have the opportunity
to fish their allocation throughout the year.
The SSC had previously recommended a commercial gag quota of
390,000 lb (176,901 kg). However, because of the method by which dead
discards were calculated in the gag update assessment, the review of
the update assessment could result in a lower allowable harvest. This
lower harvest would be implemented through Amendment 32 to the FMP. If
NMFS were to prohibit commercial harvest completely through this
interim rule, then any gag incidentally caught when fisherman target
other reef fish would result in discards. Therefore, the Council
requested, and NMFS proposes a quota of 100,000 lb (45,359 kg), which
would allow a minimum level of incidentally caught gag to be retained
and counted against the commercial quota.
Because of the proposed reduction in the gag commercial quota, the
commercial quota for SWG is proposed to be reduced to 4.83 million lb
(2.19 million kg). Within the SWG quota are separate quotas for gag and
red grouper. The other SWG species included in this combined quota
include black grouper, scamp, yellowfin grouper, rock hind, red hind,
and yellowmouth grouper. Additionally, for the purposes of the IFQ
program for Gulf groupers and tilefishes in Sec. 622.20(b)(2)(v),
speckled hind and warsaw grouper are considered SWG species under
certain circumstances. After all of an IFQ account holder's deep-water
grouper (DWG) allocation has been landed and sold, or transferred, or
if an IFQ account holder has no DWG allocation, then other SWG
allocation may be used to land and sell speckled hind and warsaw
grouper. In this interim rule, the reduction of the SWG quota directly
corresponds to the amount of the reduction in the commercial quota for
gag.
This interim rule would also suspend red grouper multi-use
allocation to ensure the gag commercial quota is not exceeded. Red
grouper multi-use allocation will be addressed further in Amendment 32
to the FMP.
This interim rule would prohibit the recreational harvest of gag by
setting the recreational bag limit for gag to zero. However, it is the
intent of the Council to allow a 2011 recreational harvest of gag,
likely in a limited gag fishing season, through management measures to
be implemented through Amendment 32. Although gag landings may be
reduced through more restrictive bag limits, proportional reductions in
gag discards and associated discard mortality are not likely based on
high levels of gag bycatch and bycatch mortality within other
components of the Gulf reef fish fishery.
At its August 2010 Council meeting, the Council indicated a
preference for a summer recreational fishing season for gag based on
projections from the 2009 gag stock assessment, and expressed its
intent to implement such a recreational season in Amendment 32.
The rationale for prohibiting gag recreational harvest is based on
the high rate of gag regulatory discards. Most of the recreational
effort occurs in the coastal and nearshore waters where juvenile gag
typically reside. Although the average estimated recreational discard
mortality rates are lower than the commercial discard mortality rates
(32 percent for the recreational sector and 67 percent for the
commercial sector), the total number of dead discards within the
recreational sector may still be comparatively high given the high
encounter rate in the recreational sector. Therefore, to meet the
Council's intent to allow a recreational gag season later in 2011, it
is important to reduce the number of recreational dead discards through
this temporary rule to allow for the longest season length possible
through Amendment 32.
For the commercial sector, the encounter rate of regulatory
discards is lower than that for the recreational sector because
commercial fishing effort primarily occurs in offshore waters where
adult gag typically reside. However, with a higher discard rate, the
likelihood of a gag surviving after capture in the commercial sector is
much lower because of the effects of barotrauma that occur during
commercial harvest of gag in deeper waters.
Therefore, the Council requested a minimal commercial gag quota to
account for gag that are caught incidentally during the targeting of
other reef fish species and allow those incidental gag to be counted
against the commercial quota rather than be discarded dead.
Future Action
NMFS has determined that this proposed rule is necessary to reduce
overfishing of gag in the Gulf of Mexico. NMFS will consider all public
comments received on this proposed rule in determining whether to
proceed with a final rule and, if so, whether any revisions would be
appropriate in the final rule. If NMFS issues a final rule, it would be
effective for not more than
[[Page 63788]]
180 days after publication, as authorized by section 305(c) of the
Magnuson-Stevens Act. The final rule could be extended for an
additional 186 days, provided that the public has had an opportunity to
comment on the rule.
NMFS acknowledges the need to continue monitoring all sources of
gag mortality to determine the appropriate level of future actions
necessary to ensure progress consistent with the stock rebuilding plan
over the long term.
Classification
Pursuant to section 304(b)(1)(A) of the Magnuson-Stevens Act, the
NMFS Assistant Administrator has determined that this proposed rule is
consistent with the regulatory amendment, other provisions of the
Magnuson-Stevens Act, and other applicable law, subject to further
consideration after public comment.
This proposed rule has been determined to be not significant for
purposes of Executive Order 12866.
NMFS prepared an IRFA, as required by section 603 of the Regulatory
Flexibility Act, for this proposed rule. The IRFA describes the
economic impact that this proposed rule, if adopted, would have on
small entities. A description of the action, why it is being
considered, and the objectives of, and legal basis for this action are
contained at the beginning of this section in the preamble and in the
SUMMARY section of the preamble. A copy of the full analysis is
available from the Council (see ADDRESSES). A summary of the IRFA
follows.
The Magnuson-Stevens Act provides the statutory basis for the
proposed rule. The proposed temporary rule would reduce the commercial
quota for gag, reduce the combined commercial SWG quota, prohibit
recreational harvest of gag, and suspend red grouper multi-use
allocation in the Gulf grouper and tilefish IFQ program. The purpose of
this proposed temporary rule is to reduce overfishing of the gag
resource in the Gulf.
No duplicative, overlapping, or conflicting Federal rules have been
identified.
This proposed temporary rule is expected to directly affect
commercial harvesting and for-hire operations. The Small Business
Administration (SBA) has established size criteria for all major
industry sectors in the U.S. including fish harvesters. A business
involved in fish harvesting is classified as a small business if it is
independently owned and operated, is not dominant in its field of
operation (including its affiliates), and has combined annual receipts
not in excess of $4.0 million (NAICS code 114111, finfish fishing) for
all its affiliated operations worldwide. For for-hire vessels, the
other qualifiers apply and the receipts threshold is $7.0 million
(NAICS code 713990, recreational industries).
This proposed temporary rule is expected to directly affect
commercial fishing vessels whose owners possess gag fishing quota
shares and for-hire fishing vessels that harvest gag. As of October 1,
2009, 970 entities owned a valid commercial Gulf reef fish permit and
thus were eligible for initial shares and allocation in the grouper and
tilefish IFQ program. Of these 970 entities, 908 entities initially
received shares and allocation of grouper or tilefish, and 875 entities
specifically received gag shares and an initial allocation of the
commercial sector's gag quota in 2010. These 875 entities are expected
to be directly affected by the proposed actions to reduce the
commercial quota for gag and disallow the conversion of red grouper
allocation to multi-use allocation.
Of the 875 entities that initially received gag shares, 215 were
not commercially fishing in 2008 or 2009 and thus had no commercial
fishing revenue during these years. On average, these 215 entities
received an initial allocation of 874 lb (397 kg) of gag in 2010. Eight
of these 215 entities also received a bottom longline endorsement in
2010. These 8 entities received a much higher initial allocation of gag
in 2010, with an average of 3,139 lb (1,427 kg).
The other 660 entities that initially received gag shares and
allocations in 2010 were active in commercial fisheries in 2008 or
2009. The maximum annual commercial fishing revenue in 2008 or 2009 by
an individual vessel with commercial gag fishing quota shares was
approximately $606,000 (2008 dollars).
The average charterboat is estimated to earn approximately $88,000
(2008 dollars) in annual revenue, while the average headboat is
estimated to earn approximately $461,000 (2008 dollars). Based on these
values, all commercial and for-hire fishing vessels expected to be
directly affected by this proposed temporary rule are determined for
the purpose of this analysis to be small business entities.
Of the 660 commercial fishing vessels with commercial landings in
2008 or 2009, 139 vessels did not have any gag landings in 2008 or
2009. Their average annual gross revenue in these 2 years was
approximately $50,800 (2008 dollars). The vast majority of these
vessels' commercial fishing revenue is from a combination of snapper,
mackerel, dolphin, and wahoo landings. On average, in 2010, these
vessels received an initial allocation of 540 lb (245 kg) of gag quota.
The remaining 521 commercially active fishing vessels did have
landings of gag in 2008 or 2009. Their average annual gross revenue
from commercial fishing was approximately $71,000 (2008 dollars)
between the two years. On average, these vessels had 2,375 lb (1,080
kg) and 1,300 lb (591 kg) of gag landings in 2008 and 2009
respectively, or 1,835 lb (834 kg) between the 2 years. Gag landings
accounted for approximately 8 percent of these vessels' annual average
gross revenue, and thus they are somewhat though not significantly
dependent on revenue from gag landings. These vessels' average initial
gag allocation in 2010 was 2,121 lb (964 kg). Therefore, on average,
their 2008 gag landings were very near their 2010 gag allocation, but
their 2009 gag landings were considerably less than their 2010
allocation.
Of these 521 vessels, 52 vessels also received a bottom longline
endorsement in 2010. These particular vessels' average annual revenue
was approximately $156,000 (2008 dollars) in 2008 and 2009. Revenue
from gag landings fell from approximately $15,900 to $8,400 in 2009 and
thus they became relatively less dependent on gag landings. These
vessels are highly dependent on revenue from red grouper landings,
which accounted for 54 percent and 47 percent of their gross revenue in
2008 and 2009 respectively. Revenue from deep-water grouper (DWG)
landings decreased only slightly, from approximately $36,000 in 2008 to
$31,000 in 2009, and thus these vessels became relatively more
dependent on revenue from DWG landings. Their average initial 2010
allocation of gag was approximately 5,507 lb (2,503 kg) while their
average gag landings were 3,933 lb (1,788 kg) and 2,204 lb (1,002 kg)
in 2008 and 2009 respectively. Thus, vessels that now have a bottom
longline endorsement have been harvesting well within that allocation
in recent years, particularly in 2009.
The for-hire fleet is comprised of charter vessels, which charge a
fee on a vessel basis, and headboats, which charge a fee on an
individual angler (head) basis. The harvest of gag in the EEZ by for-
hire vessels requires a charter vessel/headboat permit for Gulf reef
fish. On March 23, 2010, there were 1,376 valid or renewable for-hire
Gulf reef fish permits. A valid permit is a non-expired permit. Expired
reef fish for-hire permits may not be actively
[[Page 63789]]
fished, but are renewable for up to 1 year after expiration. Because of
the extended renewal period, numerous permits may be expired but
renewable at any given time of the year during the renewal period after
the permit's expiration. The majority (823, or approximately 60
percent) of the 1,376 valid or renewable permits were registered with
Florida addresses. The registration address for the Federal permit does
not restrict operation to Federal waters off that State; however,
vessels would be subject to any applicable State permitting
requirements. Although the permit does not distinguish between
headboats and charter vessels, it is estimated that 79 headboats
operate in the Gulf. The majority of these vessels (43, or
approximately 54 percent) operate from Florida ports. Given that nearly
99 percent of target effort for gag and 97 percent of the economic
impacts from the recreational sector for gag in the Gulf reef fish
fishery are in west Florida, it is assumed that the 823 for-hire
vessels (780 charter vessels and 43 headboats) in Florida are expected
to be directly affected by the proposed action to reduce the
recreational bag limit for gag to zero.
The 215 entities with gag shares that did not participate in
commercial fishing in 2008 or 2009 have no commercial fishing revenue
and did not earn profit from commercial fishing in those 2 years. Under
the proposed action to decrease the commercial quota for gag, their
allocation of gag in 2011 would be reduced, on average, from 874 lb
(397 kg) to 61 lb (28 kg), or by approximately 813 lb (370 kg). Using
the 2008 average price of $3.52 per lb, this loss in allocation could
potentially represent an annual loss of nearly $2,900 in gross revenue
per entity. For the eight entities with gag shares that also possess
longline endorsements, their average annual allocation of gag would be
reduced from 3,139 lb (1,427 kg) to 220 lb (100 kg), or by 2,919 lb
(1,327 kg). Thus, their potential loss in gross revenue, estimated to
be nearly $10,280, could be much higher. However, in general, this
potential loss in gross revenue could only reduce profit if these
entities not only become active in commercial fishing, but specifically
intend to harvest gag in 2011 and at a level above their reduced
allocation. Alternatively, these potential losses in gross revenue
could be due to these entities' inability to sell the allocations they
are losing under the proposed action, though this possibility presumes
that a demand for these allocations exists. Regardless, the
significance of this potential loss in gross revenue to these 215
entities cannot be evaluated given the lack of information on potential
gross revenue and profit from commercial fishing in general and
specifically for gag.
Profit estimates are not currently available for the 139 entities
with gag shares that participated in commercial fisheries other than
gag. However, since these vessels did not have any gag landings, none
of their gross revenue and thus none of their profit were the result of
gag harvests. Under the proposed action to decrease the commercial
quota for gag, their average allocation of gag in 2011 would be reduced
from 540 lb (245 kg) to 38 lb (17 kg), or by approximately 502 lb (228
kg). Using the 2008 average price of $3.52 per pound, this loss in
allocation could potentially represent an annual loss of nearly $1,800
in gross revenue per entity. However, this potential loss in gross
revenue could only lead to a loss in profit if these entities intend to
become active in the gag component of the Gulf reef fish fishery in
2011 and at a level above their reduced allocation. Thus, for example,
assuming these vessels intend to harvest gag in 2011 at a level
equivalent to their 2010 allocation, and this harvest was in addition
to, rather than in place of, their recent commercial fishing
activities, the reduction in allocation could lead to a maximum loss of
approximately three percent in gross revenue which could in turn reduce
profit. Alternatively, these losses in gross revenue could be due to
these entities' inability to sell the allocations they are losing under
the proposed action, though this possibility presumes that a demand for
these allocations exists.
Profit estimates are not currently available for the 521 entities
with gag shares that participated in the commercial gag sector of the
Gulf reef fish fishery in 2008 or 2009. Under the proposed action to
decrease the commercial gag quota, these vessels' gag allocations would
be reduced from 2,121 lb (964 kg) to 148 lb (67 kg), or by
approximately 1,973 lb (897 kg) on average. As these vessels have been
harvesting at levels near their 2010 allocation in recent years on
average, this reduction in gag allocation is likely to lead to a future
reduction in gag landings and therefore gross revenue. Using the
average 2008 price of $3.52 per pound, it is estimated that these
vessels could lose nearly $6,950, or approximately 10 percent, in
average annual gross revenue. A loss in gross revenue of this magnitude
would likely lead to a reduction in profit.
However, for the 52 vessels with gag shares that were active in the
gag component of the Gulf reef fish fishery and also received a bottom
longline endorsement in 2010, their allocation of gag in 2011 would
decrease from 5,707 lb (2,594 kg) to 400 lb (182 kg), or by
approximately 5,307 lb (2,412 kg) under the proposed action. This loss
in landings is estimated to be valued at approximately $18,700 in gross
revenue, or 12 percent of their average annual gross revenue. Such a
loss in gross revenue would likely reduce their profit.
Under the proposed action to suspend the conversion of red grouper
allocation into multi-use allocation valid toward the harvest of red
grouper or gag, minimal adverse economic effects are expected as a
result of commercial fishing entities not being allowed to convert 4
percent of their red grouper allocation into multi-use allocation.
Multi-use allocation that has been converted from red grouper
allocation can only be used to possess, land, or sell gag after an
entity's gag and gag multi-use allocation has been landed, sold, or
transferred. Given the proposed reduction in the commercial gag quota,
it is likely these entities will exhaust their gag and gag multi-use
allocations relatively early in 2011. Revenue from gag landings is
greater than revenue from an equivalent amount of red grouper landings
since gag commands a relatively higher market price. Thus, total
commercial fishing revenue and, therefore, profit per vessel could be
slightly less than if the multi-use conversion were allowed to
continue.
Net operating revenues (NOR) are assumed to be representative of
profit for for-hire vessels. It is assumed that 823 for-hire vessels,
780 charter vessels and 43 headboats, participate in the recreational
gag component of the Gulf reef fish fishery. Estimates of NOR from
recreational fisheries other than gag and thus across all fisheries in
which these charter vessels and headboats participate are not currently
available. However, on average, NOR for charter vessels from trips
targeting gag are estimated to be approximately $1.34 million per year
while NOR for headboats from trips targeting gag are estimated to be
$81,000 per year. Thus, NOR for all trips targeting gag is estimated to
be approximately $1.35 million per year. The average annual NOR from
trips targeting gag is estimated to be $1,716 per charter vessel and
$1,881 per headboat.
When the length of the gag season is reduced by setting the
recreational bag limit for gag at zero, some trips that formerly
targeted gag will instead target
[[Page 63790]]
other species while other trips that formerly targeted gag will be
cancelled. Assuming the NOR per trip is constant regardless of the
species targeted, for-hire operators will only lose NOR from trips
cancelled as a result of the shortened season length. Information
regarding the number of trips cancelled as a result of the shortened
season is not currently available. Thus, this analysis assumes that all
of the current for-hire trips targeting gag will be cancelled. Because
some of these trips would probably not be cancelled, this assumption is
expected to overestimate the actual reduction in NOR associated with a
shorter season. Thus, the following estimates of losses in NOR and
profit for charter vessels and headboats should be considered maximum
values.
Under the proposed action to set the gag recreational bag limit for
gag at zero, the losses in NOR from trips targeting gag for charter
vessels and headboats are estimated to be approximately $750,000 and
$43,000, respectively, if the proposed temporary rule is not extended
for up to 186 days as allowed under the Magnuson-Stevens Act for
interim measures. Thus, the losses in NOR from trips targeting gag are
estimated to be $962 and $1,000 per charter vessel and headboat,
respectively. These NOR losses represent a loss in profit from trips
targeting gag of approximately 56 percent and 53 percent per charter
vessel and headboat, respectively. However, if the proposed temporary
rule is extended, the losses in NOR for charter vessels and headboats
are estimated to be approximately $1.34 million and $81,000,
respectively. Thus, the losses in NOR are estimated to be $1,716 and
$1,881 per charter vessel and headboat, respectively. These losses in
NOR represent a loss in profit from trips targeting gag of 100 percent
per charter vessel and headboat, respectively. The proposed action is
not expected to affect profit for charter vessels and headboats from
trips not targeting gag. Vessel dependence on fishing for individual
species cannot be determined with available data. Although some vessels
are likely more dependent on trips that target gag than other vessels,
overall, about three percent of for-hire anglers are estimated to
target gag. As a result, while the proposed action would be expected to
substantially affect the NOR derived from gag trips, overall, gag trips
do not comprise a substantial portion of total for-hire trips nor would
they, by extension, be expected to account for a substantial portion of
total for-hire NOR.
No additional economic effects would be expected to result from the
revised SWG quota because the updated SWG quota simply reflects the
proposed reduction in the commercial gag quota, the effects of which
have already been discussed.
Three alternatives, including the status quo, were considered for
the action to reduce the commercial quota for gag from 1.49 million lb
(0.68 million kg) to 100,000 lb (45,359 kg) in 2011. The first
alternative, the status quo, would have maintained the commercial quota
for gag at 1.49 million lb (0.68 million kg) in 2011. This alternative
is not consistent with the goals and objectives of the Council's plan
to manage gag to achieve the mandates of the Magnuson-Stevens Act.
Specifically, selection of this alternative would be inconsistent with
current National Standard 1 guidance because this quota would be above
the ABC recommended by the Council's SSC of 1.17 million lb (0.53
million kg) for 2011. In addition, this alternative would promote
overfishing and slow recovery of the stock.
The second alternative would have set the commercial quota for gag
at 390,000 lb (0.18 million kg), with one option to release the entire
quota on January 1, 2011 and a second option to release 50 percent of
the quota on January 1, 2001 and the remaining 50 percent on July 1,
2011. This quota is based on projected FOY yield streams,
1.01 million lb (0.46 million kg) for 2011, and is consistent with the
methods used by the Council in Amendment 30B for setting the annual
catch target. This harvest level corresponds with the Council's initial
request for an interim rule at its June 2010 meeting. The commercial
quota for gag under this alternative is less than what the quota would
be if based on the SSC's ABC recommendation (FRebuild yield
stream) of 1.17 million lb (0.53 million kg). Based on the SSC's
recommendation, selecting this alternative would have a less than 50
percent chance of overfishing by the commercial sector and would
provide a greater than 50 percent chance of rebuilding the stock if
this yield stream is adhered to in future actions. However, recent
discrepancies with the estimation of dead discards could affect how the
assessment projects the status of the stock. If these discrepancies
show a more pessimistic condition of the stock when the assessment is
rerun, then selecting this alternative could result in harvest levels
inconsistent with rebuilding the stock within the time frames outlined
in the Magnuson-Stevens Act. Should these discrepancies result in a
more optimistic condition of the stock, then the commercial quota for
gag could be increased in subsequent actions.
The third alternative is the most conservative and would set the
commercial quota for gag equal to zero. Under this alternative, any
addition to the quota would be initiated through Amendment 32 or some
other rulemaking vehicle. Closure of the commercial sector to gag would
benefit the stock by ending overfishing as well as halt gag fishing
during the primary gag spawning season. However, this alternative would
not allow gag allocation holders to land gag that might be caught
incidentally when fishing for other species. Instead, these fish would
have to be released. Because the commercial sector generally operates
in relatively deep waters, a large proportion of these fish would
likely die from barotrauma and handling. Release mortality has been
estimated to be 67 percent on average for commercial discards. This
high rate of discard mortality would contribute to overall mortality,
thereby slowing recovery of the stock and thus is contrary to the
Council's objectives.
Two alternatives, including the status quo, were considered for the
action to suspend the ability of allocation holders to convert red
grouper allocation into multi-use allocation valid toward the harvest
of red grouper or gag. The first alternative, the status quo, would
continue to allow 4 percent of the red grouper allocation to be
converted into multi-use allocation. This alternative is expected to
result in gag harvests that would exceed specified annual catch limits,
promote overfishing, and therefore slow recovery of the stock, contrary
to the Council's objectives. Further, this alternative is also expected
to result in greater adverse economic effects stemming from the
corrective measures that would be implemented to address the over-
harvesting of gag.
The second alternative would allow a smaller percentage (1.6
percent) of red grouper allocation to be converted into multi-use
allocation based on the buffer existing between the commercial annual
catch limit (ACL) and quota for gag. This alternative is consistent
with a gag commercial ACL of 1.76 million lb (0.8 million kg) and a
1.49 million lb (0.68 million kg) commercial quota for gag. Since the
proposed commercial quota for gag is only 100,000 lb (45,359 kg), the
percentage of red grouper allocation that could be converted to multi-
use allocation is too high under this alternative as it is expected to
result in gag harvests that would exceed specified ACLs, promote
overfishing,
[[Page 63791]]
and therefore slow recovery of the stock, contrary to the Council's
objectives.
Two alternatives, including the status quo, were considered for the
action to set the recreational bag limit at zero. The first
alternative, the status quo, would maintain the recreational catch
target at 2.20 million lb (1 million kg) as defined in Amendment 30B
and thus maintain the current recreational bag limit of 2 gag within
the 4-fish aggregate grouper bag limit. Selection of this alternative
would be inconsistent with current National Standard 1 guidance because
this level of harvest would be above the ABC recommended by the
Council's SSC of 1.17 million lb (0.53 million kg) for 2011. In
addition, this alternative would promote overfishing and slow recovery
of the stock.
The second alternative would set the gag bag limit to zero on the
date when 620,000 lb (0.28 million kg) of gag is projected to be landed
by the recreational sector in 2011. This harvest level is consistent
with the fishing mortality rate associated with the OY used by the
Council in Amendment 30B to set the recreational annual catch target.
Under certain assumptions regarding the disposition of discards, this
alternative is expected to result in a fishing season of 83 days. Given
the closure of the shallow water grouper (SWG) recreational sector
annually from February 1 to March 31, fishing would be allowed for the
month of January and from April 1 to May 22. However, this fishing
season is dependent on achieving the same percentage reduction in dead
discards as obtained from the harvest. If these levels of reduction are
not met, then harvesting this amount of fish could exceed the
reductions needed for the stock to recover under the rebuilding plan
being developed in Amendment 32 which, in turn, could require deeper
cuts in future harvests than those projected by the current assessment
update.
Although by regulation, the actions in this proposed temporary rule
do not need to end overfishing, they do need to reduce overfishing.
This alternative could limit the types of long-term measures developed
by the Council in Amendment 32 that could be applied to the 2011
fishing year since the 620,000 lb (0.28 million kg) catch target would
likely be achieved before rulemaking from Amendment 32 is implemented.
Therefore, the harvest for the rest of the fishing year could be zero
and any long-term measures developed in Amendment 32 would not apply
until 2012.
Further, recent discrepancies with the estimation of dead discards
could affect how the assessment projects the status of the stock. If
these discrepancies show a more pessimistic condition of the stock when
the assessment is rerun, then selecting this alternative could result
in harvest levels inconsistent with rebuilding the stock within the
time frames outlined in the Magnuson-Stevens Act. This is particularly
important for the recreational sector which harvests a greater
proportion of the gag total catch than the commercial sector.
Conversely, should these discrepancies result in a more optimistic
condition of the stock, the recreational catch target and bag limit
could be increased in subsequent actions.
This proposed temporary rule does not establish any new reporting,
record-keeping, or other compliance requirements.
List of Subjects in 50 CFR Part 622
Fisheries, Fishing, Puerto Rico, Reporting and recordkeeping
requirements, Virgin Islands.
Dated: October 12, 2010.
John Oliver,
Deputy Assistant Administrator for Operations, National Marine
Fisheries Service.
For the reasons set out in the preamble, 50 CFR part 622 is
proposed to be amended as follows:
PART 622--FISHERIES OF THE CARIBBEAN, GULF, AND SOUTH ATLANTIC
1. The authority citation for part 622 continues to read as
follows:
Authority: 16 U.S.C. 1801 et seq.
Sec. 622.20 [Amended]
2. In Sec. 622.20, paragraph (b)(2)(iv)(A) is suspended.
3. In Sec. 622.34, paragraph (v) is added to read as follows:
Sec. 622.34 Gulf EEZ seasonal and/or area closures.
* * * * *
(v) Closure of the recreational sector for gag. The recreational
sector for gag in the Gulf EEZ is closed. During the closure, all
recreational harvest and possession of gag grouper in or from the Gulf
EEZ is prohibited. Such fish caught in the Gulf EEZ must be released
immediately with a minimum of harm.
4. In Sec. 622.39, paragraph (b)(1)(ii) is suspended, and
paragraph (b)(1)(viii) is added, to read as follows:
Sec. 622.39 Bag and possession limits.
* * * * *
(b) * * *
(1) * * *
(viii) Groupers, combined, excluding goliath grouper, Nassau
grouper, and gag--4 per person per day, but not to exceed 1 speckled
hind or 1 warsaw grouper per vessel per day, or 2 red grouper per
person per day. However, no grouper may be retained by the captain or
crew of a vessel operating as a charter vessel or headboat. The bag
limit for such captain and crew is zero.
* * * * *
5. In Sec. 622.42, paragraphs (a)(1)(iii)(A)(3) and
(a)(1)(iii)(B)(3) are suspended, and paragraphs (a)(1)(iii)(A)(4) and
(a)(1)(iii)(B)(4) are added, to read as follows:
Sec. 622.42 Quotas.
(a) * * *
(1) * * *
(iii) * * *
(A) * * *
(4) For fishing year 2011 and subsequent fishing years--4.83
million lb (2.19 million kg).
(B) * * *
(4) For fishing year 2011 and subsequent fishing years--100,000 lb
(45,359 kg).
* * * * *
[FR Doc. 2010-26198 Filed 10-15-10; 8:45 am]
BILLING CODE 3510-22-P