83_FR_29165 83 FR 29044 - Fisheries of the Caribbean, Gulf of Mexico, and South Atlantic; Spiny Lobster Fishery of the Gulf of Mexico and South Atlantic Regions; Regulatory Amendment 4

83 FR 29044 - Fisheries of the Caribbean, Gulf of Mexico, and South Atlantic; Spiny Lobster Fishery of the Gulf of Mexico and South Atlantic Regions; Regulatory Amendment 4

DEPARTMENT OF COMMERCE
National Oceanic and Atmospheric Administration

Federal Register Volume 83, Issue 121 (June 22, 2018)

Page Range29044-29047
FR Document2018-13400

NMFS implements management measures described in Regulatory Amendment 4 to the Fishery Management Plan for Spiny Lobster in the Gulf of Mexico (Gulf) and South Atlantic (FMP), as prepared and submitted by the Gulf and South Atlantic Fishery Management Councils (Councils). This final rule increases the annual catch limit (ACL) for spiny lobster based on updated landings information and revised scientific recommendations. This final rule also prohibits the use of traps for recreational harvest of spiny lobster in the South Atlantic exclusive economic zone (EEZ) off Georgia, South Carolina, and North Carolina. The purposes of this final rule are to ensure catch levels for spiny lobster are based on the best scientific information available, to prevent overfishing, and to minimize potential negative effects of traps on habitat and protected species interactions in the South Atlantic EEZ.

Federal Register, Volume 83 Issue 121 (Friday, June 22, 2018)
[Federal Register Volume 83, Number 121 (Friday, June 22, 2018)]
[Rules and Regulations]
[Pages 29044-29047]
From the Federal Register Online  [www.thefederalregister.org]
[FR Doc No: 2018-13400]


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DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

50 CFR Part 622

[Docket No. 170630611-8525-02]
RIN 0648-BH01


Fisheries of the Caribbean, Gulf of Mexico, and South Atlantic; 
Spiny Lobster Fishery of the Gulf of Mexico and South Atlantic Regions; 
Regulatory Amendment 4

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

ACTION: Final rule.

-----------------------------------------------------------------------

SUMMARY: NMFS implements management measures described in Regulatory 
Amendment 4 to the Fishery Management Plan for Spiny Lobster in the 
Gulf of Mexico (Gulf) and South Atlantic (FMP), as prepared and 
submitted by the Gulf and South Atlantic Fishery Management Councils 
(Councils). This final rule increases the annual catch limit (ACL) for 
spiny lobster based on updated landings information and revised 
scientific recommendations. This final rule also prohibits the use of 
traps for recreational harvest of spiny lobster in the South Atlantic 
exclusive economic zone (EEZ) off Georgia, South Carolina, and North 
Carolina. The purposes of this final rule are to ensure catch levels 
for spiny lobster are based on the best scientific information 
available, to prevent overfishing, and to minimize potential negative 
effects of traps on habitat and protected species interactions in the 
South Atlantic EEZ.

DATES: This final rule is effective on July 23, 2018.

ADDRESSES: Electronic copies of Regulatory Amendment 4, which includes 
an environmental assessment and a regulatory flexibility analysis, and 
a regulatory impact review, may be obtained from the Southeast Regional 
Office website at http://sero.nmfs.noaa.gov/sustainable_fisheries/gulf_sa/spiny_lobster/A4_lobster_acl/a4_lobster_acl_index.html.

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

SUPPLEMENTARY INFORMATION: The spiny lobster fishery of the Gulf and 
the South Atlantic is managed under the FMP. The FMP was prepared by 
the Councils and implemented through regulations at 50 CFR part 622 
under the authority of the Magnuson-Stevens Fishery Conservation and 
Management Act (Magnuson-Stevens Act) (16 U.S.C. 1801 et seq.).
    On February 2, 2018, NMFS published a proposed rule for Regulatory 
Amendment 4 in the Federal Register and requested public comment (83 FR 
4890). Regulatory Amendment 4 and the proposed rule outline the 
rationale for the actions contained in this final rule. A summary of 
the management measures described in Regulatory Amendment 4 and 
implemented by this final rule is provided below.

Management Measures Contained in This Final Rule

    This final rule modifies the stock ACL and annual catch target 
(ACT) for spiny lobster and prohibits the use of traps for the 
recreational harvest of spiny lobster in the South Atlantic EEZ.

Stock ACL and ACT

    This final rule revises the stock ACL and ACT based on the new 
acceptable biological catch (ABC) recommendation provided by the 
Councils' Scientific and Statistical Committees (SSCs). This final rule 
sets the ACL equal to the recommended ABC of 9.60 million lb (4.35 
million kg), which is based on the mean landings from the years 1991/
1992-2015/2016 plus 1.5 standard deviations. This final rule sets the 
ACT at 8.64 million lb (3.92 million kg), which is 90 percent of the 
ACL. As established in Amendment 10 to the FMP (Amendment 10), the 
optimum yield (OY) equals the ACT. NMFS does not expect the increase in 
the ACT and ACL to result in negative biological effects on the stock 
because current fishing effort is limited by several variables. These 
variables include the number of trap tags issued by the state of 
Florida, commercial and recreational bag and possession limits in the 
Gulf and South Atlantic EEZ, and the duration of the fishing season, 
which varies depending on the area where spiny lobsters are harvested.

Recreational Harvest of Spiny Lobster Using Traps in the South Atlantic 
EEZ

    This final rule prohibits the use of traps for recreational harvest 
of spiny lobster in all of the South Atlantic EEZ.
    The Councils are concerned that using these traps for recreational 
harvest may become more popular and result in potential negative 
impacts on essential fish habitat and an increase in the use of 
vertical lines that may interact with protected species, for example, 
by creating entanglement issues, continuing to fish after a trap is 
lost, or creating bycatch.

Measures in Regulatory Amendment 4 Not Codified Through This Final Rule

    As established in Amendment 10, the maximum sustainable yield (MSY) 
proxy and maximum fishing mortality threshold (MFMT) are equal to the 
OFL, which was set at 7.9 million lb (3.58 million kg). Consistent with 
Amendment 10, Regulatory Amendment 4 would modify the MSY proxy and 
MFMT values, so that they are equal to the revised OFL of 10.46 million 
lb (4.74 million kg).

Measures in This Final Rule Not Included in Regulatory Amendment 4

    In addition to implementing the measures associated with Regulatory 
Amendment 4, this final rule corrects regulatory language that was 
mistakenly included in the final rule implementing Amendment 10. This 
final rule changes 50 CFR 622.407(c) to remove the phrase ``whichever 
is greater'' and the first occurrence of a duplicative sentence. This 
final rule also makes a minor

[[Page 29045]]

wording revision to more directly state that the total number of 
undersized spiny lobster allowed on-board a vessel is 50 plus 1 per 
trap.

Comments and Responses

    A total of 14 comments were received on the proposed rule to 
implement Regulatory Amendment 4. Comments that were beyond the scope 
of the proposed rule and comments that agreed with the proposed actions 
are not responded to in this final rule. Other comments that relate to 
the actions contained in Regulatory Amendment 4 and the proposed rule 
are grouped as appropriate and summarized below, followed by NMFS' 
respective responses.
    Comment 1: The ACL for spiny lobster should not be increased. The 
ACL should remain at its current level for another 5 years to allow the 
spiny lobster populations to increase.
    Response: NMFS disagrees. The new ACL is consistent with a new ABC 
recommendation by the Councils' SSCs. The prior ABC recommendation was 
based on a time period when landings were historically low. The new ABC 
and the corresponding increase in the ACL are based on a longer time 
period (1991/1992 through 2015/2016) to better capture the dynamics of 
the fishery that are influenced by factors beyond spiny lobster biology 
and harvest, such as environmental, economic, and social conditions. As 
described in Regulatory Amendment 4, increasing the ACL is not expected 
to negatively affect the spiny lobster population because fishing 
effort is not expected to increase. Current fishing effort is limited 
by such measures as the number of commercial trap tags issued by the 
state of Florida, commercial and recreational bag and possession limits 
in the South Atlantic and Gulf EEZ, and the duration of the fishing 
seasons, which varies based on location. Further, maintaining the 
current ACL for 5 years would not necessarily allow for the spiny 
lobster populations to increase in U.S. waters. Spiny lobster is widely 
distributed throughout the western Atlantic Ocean from as far north as 
North Carolina to as far south as Brazil, including Bermuda, The 
Bahamas, Caribbean, and Central America. Genetic studies show that most 
larval recruits in U.S. waters are from elsewhere in the Caribbean, 
with only 10-40 percent locally spawned larvae retained in U.S. waters.
    Comment 2: The timeframe used to specify catch limits for spiny 
lobster should be continuously updated to incorporate periods of low 
and high landings, natural disasters such as hurricanes, and to allow 
for accurate estimates of the stock OFL and ABC.
    Response: NMFS agrees that is appropriate to reevaluate the ABC, 
which is used to set the catch limit, when relevant new information 
becomes available. That is what occurred through the process leading to 
up to the Council proposing Regulatory Amendment 4. As explained above, 
the current OFL and ABC for spiny lobster were established using the 
mean of the most recent 10 years of landings at that time (i.e., 
fishing years 2000/2001 through 2009/2010). The Councils' SSCs 
reevaluated this approach in 2016 in response to a recommendation from 
a review panel, which was convened as required by the accountability 
measures when landings exceeded the ACT. The SSCs agreed with the 
review panel's recommendation to use a longer time series of landings 
(i.e., fishing years 1991/1992 through 2015/2016) to re-specify the OFL 
and ABC for spiny lobster. This resulted in the increase in the ACL and 
ACT implemented through this final rule. Regulatory Amendment 4 also 
states that a review panel should be convened if there are 2 
consecutive years of low landings (below 5.3 million lb). Thus, there 
are mechanisms in place to respond to changes in harvest and update the 
ACL as appropriate.
    Comment 3: The increase in spiny lobster ACL and prohibition of 
recreational harvest using traps will allow more commercial harvest of 
spiny lobster. This will have an economic impact on small business 
entities and therefore, as a result of increased commercial harvest, 
NMFS should prepare an initial regulatory flexibility act analysis 
(IRFA) to better address the economic impacts of these actions.
    Response: NMFS disagrees that it is necessary to prepare an IRFA. 
As stated in the Classification section of the proposed rule and again 
in this final rule, the increase in the ACL and ACT for spiny lobster 
will have no impact on small commercial fishing businesses because the 
AMs do not require a closure or otherwise limit commercial landings of 
spiny lobster taken from Federal waters if landings reach or exceed the 
ACL or ACT. Further, the majority of commercial harvest of spiny 
lobster occurs off Florida, and effort is limited by the number of trap 
tags issued by the state of Florida, commercial limits, and the length 
of the fishing season. Therefore, any reduction in the use of traps for 
recreational harvest is not expected to increase commercial harvest.
    Comment 4: NMFS should not prohibit the use of traps for 
recreational harvest in the EEZ off North Carolina. To avoid 
interaction of traps with whales, it would be better to close the 
recreational fishing season for spiny lobster in the EEZ off North 
Carolina during the whale migration period.
    Response: NMFS does not agree that a season restriction on the use 
of traps for recreational harvest is appropriate. Potential 
interactions between traps and protected species was one issue the 
Councils considered in deciding to prohibit the use of traps for 
recreational harvest in the EEZ off all of the South Atlantic states. 
However, the Councils were also concerned about bycatch and damage to 
habitat. Therefore, the Councils did not consider seasonal restrictions 
for recreational harvest of spiny lobster in Regulatory Amendment 4.
    Comment 5: NMFS should allow the use of traps for recreational 
harvest in the EEZ off Florida to make current spiny lobster 
regulations consistent in the EEZ off all the states in the South 
Atlantic region. The proposed rule did not include any evidence that 
the recreational sector is harming the resource or its habitat as a 
result of trap use.
    Response: NMFS disagrees that consistency in the regulations 
related to recreational harvest by traps should be achieved by allowing 
the use of traps in the EEZ off Florida. Consistency was not the basis 
for the Councils' decision to prohibit the use of this gear. Although 
current recreational harvest using traps in the EEZ outside Florida is 
likely minimal, the Councils were concerned that there could be an 
increase in the use of recreational traps and associated negative 
impacts. As discussed in Regulatory Amendment 4, trap gear can 
negatively affect the bottom substrate, entangle protected species, and 
continue ghost fishing when the trap is lost. Because the majority of 
spiny lobster harvest occurs in the EEZ off Florida, opening this area 
to recreational traps would be expected to increase these negatives 
impacts. In addition, because spiny lobsters are larger in the EEZ off 
Georgia, South Carolina, and North Carolina than in Florida, traps in 
those areas would require larger mouths (entrances) that would likely 
increase bycatch. Recreational harvest is still permitted with dive and 
snorkel gears, which are the predominant gears used by the recreational 
sector, and these gears do not have the same impact on habitat and 
other species as traps do.
    Comment 6: Commercial harvest of spiny lobster has fluctuated, 
while recreational harvest, a small part of overall harvest, has 
remained consistent. In order to protect the resource, there should be 
restrictions on

[[Page 29046]]

both the commercial and recreational sectors.
    Response: Restrictions are already in place for spiny lobster in 
place for both the commercial and recreational sectors, and this final 
rule will not remove these restrictions. Commercial and recreational 
bag and possession limits, and fishing seasons for spiny lobster are in 
place to control harvest. Any person who commercially fishes for and 
sells spiny lobster caught in either the Gulf or South Atlantic EEZ, 
except off Florida, must have a Federal spiny lobster vessel permit. 
Any person who commercially fishes for spiny lobster caught in the EEZ 
off Florida, or sells spiny lobster in Florida must have the permits 
and licenses required by Florida (http://www.myfwc.com/fishing/saltwater/commercial/spiny-lobster/). There are also requirements 
related to gear and vessel identification, and trap construction.

Changes From the Proposed Rule

    This final rule revises a reference to a boundary point coordinate 
for the Tortugas shrimp sanctuary in 50 CFR 622.55(c)(2)(iii), which 
incorrectly refers to paragraph (d)(1) rather than paragraph (c)(1).

Classification

    The Regional Administrator, Southeast Region, NMFS has determined 
that this final rule is consistent with Regulatory Amendment 4, the 
FMP, the Magnuson-Stevens Act, and other applicable law.
    This final rule has been determined to be not significant for 
purposes of Executive Order 12866.
    The Magnuson-Stevens Act provides the statutory basis for this 
rule. No duplicative, overlapping, or conflicting Federal rules have 
been identified. In addition, no new reporting, record-keeping, or 
other compliance requirements are introduced by this final rule.
    The Chief Counsel for Regulation of the Department of Commerce 
certified to the Chief Counsel for Advocacy of the Small Business 
Administration during the proposed rule stage that this final rule 
would not have a significant economic impact on a substantial number of 
small entities. The factual basis for this determination was published 
in the proposed rule and is not repeated here.
    One public comment (Comment 3) stated that the increase in 
commercial harvest would have an economic impact on small entities and 
therefore an IRFA analysis must be prepared. As stated in the 
Classification section of the proposed rule, although the rule would 
increase the ACL and ACT, there would be no impact on small commercial 
fishing businesses because there are no AMs that can either close the 
Federal season early or otherwise limit commercial landings of spiny 
lobster taken from Federal waters if landings reach or exceed the ACL 
or ACT.
    No changes were made to the final rule in response to public 
comments, and NMFS has not received any new information that would 
affect its previous determination. As a result, a final regulatory 
flexibility analysis is not required and none was prepared.
    The Assistant Administrator for NOAA Fisheries finds that with 
respect to the change to 50 CFR 622.55(c)(2)(iii) there is good cause 
to waive the requirements to provide prior notice and opportunity for 
public comment pursuant to the authority set forth in 5 U.S.C. 
553(b)(B), as such procedures are unnecessary. Such procedures are 
unnecessary because the rule implementing the provision has been 
subject to notice and comment and the revision corrects only a 
typographical error.

List of Subjects in 50 CFR Part 640

    Fisheries, Fishing, Gulf, South Atlantic, Spiny lobster, Trap.

    Dated: June 18, 2018.
Samuel D. Rauch III,
Deputy Assistant Administrator for Regulatory Programs, National Marine 
Fisheries Service.

    For the reasons set out in the preamble, 50 CFR parts 600 and 622 
are amended as follows:

PART 600--MAGNUSON-STEVENS ACT PROVISIONS

0
1. The authority citation for part 600 continues to read as follows:

    Authority: 5 U.S.C. 561 and 16 U.S.C. 1801 et seq.

Subpart R--Spiny Lobster Fishery of the Gulf of Mexico and South 
Atlantic

0
2. In Sec.  600.725, in the table in paragraph (v), under heading 
``III. South Atlantic Fishery Management Council,'' under entry 7, 
revise entry B pertaining to the ``Recreational fishery'' in the 
``Authorized gear types'' column to read as follows:


Sec.  600.725  General prohibitions.

* * * * *
    (v) * * *

------------------------------------------------------------------------
                   Fishery                       Authorized gear types
------------------------------------------------------------------------
 
                              * * * * * * *
------------------------------------------------------------------------
             III. South Atlantic Fishery Management Council
------------------------------------------------------------------------
 
                              * * * * * * *
7. South Atlantic Spiny Lobster Fishery
 (FMP):.
 
                              * * * * * * *
B. Recreational fishery......................  B. Dip net, bully net,
                                                snare, hand harvest.
 
                              * * * * * * *
------------------------------------------------------------------------

* * * * *

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

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

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


0
4. In Sec.  622.55, revise paragraph (c)(2)(iii) to read as follows:


Sec.  622.55  Closed areas.

* * * * *
    (c) * * *
    (2) * * *

[[Page 29047]]

    (iii) Effective from May 26 through July 31, each year, that part 
of the Tortugas shrimp sanctuary seaward of rhumb lines connecting the 
following points is open to trawling: From point F, as specified in 
paragraph (c)(1) of this section, to point Q at 24[deg]46.7' N lat., 
81[deg]52.2' W long. (on the line denoting the seaward limit of 
Florida's waters); thence along the seaward limit of Florida's waters, 
as shown on the current edition of NOAA chart 11439, to point U and 
north to point T, both points as specified in paragraph (c)(2)(i) of 
this section.
* * * * *

0
5. In Sec.  622.404, add paragraph (d) to read as follows:


Sec.  622.404  Prohibited gear and methods.

* * * * *
    (d) Except for black sea bass pots and golden crab traps as allowed 
in Sec.  622.188 and Sec.  622.248, respectively, the possession of all 
other traps is prohibited onboard a vessel in the South Atlantic EEZ 
when spiny lobster subject to the recreational bag and possession 
limits specified in Sec.  622.408 is also onboard the vessel. The 
recreational harvest of spiny lobster using a trap is prohibited in the 
South Atlantic EEZ.

0
6. In Sec.  622.407, revise paragraph (c) to read as follows:


Sec.  622.407  Minimum size limits and other harvest limitations.

* * * * *
    (c) Undersized attractants. A live spiny lobster under the minimum 
size limit specified in paragraph (a)(1) of this section that is 
harvested in the EEZ by a trap may be retained aboard the harvesting 
vessel for future use as an attractant in a trap provided it is held in 
a live well aboard the vessel. The live well must provide a minimum of 
\3/4\ gallons (1.7 liters) of seawater per spiny lobster. An undersized 
spiny lobster so retained must be released to the water alive and 
unharmed immediately upon leaving the trap lines and prior to 1 hour 
after official sunset each day. No more than 50 undersized spiny 
lobsters plus 1 per trap aboard the vessel may be retained aboard for 
use as attractants.
* * * * *

0
7. Revise Sec.  622.411 to read as follows:


Sec.  622.411  Annual catch limits (ACLs), annual catch targets (ACTs), 
and accountability measures (AMs).

    For recreational and commercial spiny lobster landings combined, 
the ACL is 9.60 million lb (4.35 million kg), whole weight. The ACT is 
8.64 million lb, (3.92 million kg) whole weight.

[FR Doc. 2018-13400 Filed 6-21-18; 8:45 am]
BILLING CODE 3510-22-P



                                             29044                Federal Register / Vol. 83, No. 121 / Friday, June 22, 2018 / Rules and Regulations

                                             ■ 2. In § 622.37, revise paragraphs (a)(5)              Atlantic Fishery Management Councils                   biological catch (ABC) recommendation
                                             and (b)(1) to read as follows:                          (Councils). This final rule increases the              provided by the Councils’ Scientific and
                                                                                                     annual catch limit (ACL) for spiny                     Statistical Committees (SSCs). This final
                                             § 622.37   Size limits.                                 lobster based on updated landings                      rule sets the ACL equal to the
                                             *     *     *      *    *                               information and revised scientific                     recommended ABC of 9.60 million lb
                                               (a) * * *                                             recommendations. This final rule also                  (4.35 million kg), which is based on the
                                               (5) Mutton snapper—18 inches (45.7                    prohibits the use of traps for                         mean landings from the years 1991/
                                             cm), TL.                                                recreational harvest of spiny lobster in               1992–2015/2016 plus 1.5 standard
                                               (b) * * *                                             the South Atlantic exclusive economic                  deviations. This final rule sets the ACT
                                               (1) Gag—24 inches (61.0 cm), TL.                      zone (EEZ) off Georgia, South Carolina,                at 8.64 million lb (3.92 million kg),
                                             *     *     *      *    *                               and North Carolina. The purposes of                    which is 90 percent of the ACL. As
                                             ■ 3. In § 622.38, revise paragraph (b)(4)               this final rule are to ensure catch levels             established in Amendment 10 to the
                                             to read as follows:                                     for spiny lobster are based on the best                FMP (Amendment 10), the optimum
                                                                                                     scientific information available, to                   yield (OY) equals the ACT. NMFS does
                                             § 622.38   Bag and possession limits.                   prevent overfishing, and to minimize                   not expect the increase in the ACT and
                                             *     *     *      *    *                               potential negative effects of traps on                 ACL to result in negative biological
                                               (b) * * *                                             habitat and protected species                          effects on the stock because current
                                               (4) Snappers, combined, excluding                     interactions in the South Atlantic EEZ.                fishing effort is limited by several
                                             red, lane, and vermilion snapper—10. In                 DATES: This final rule is effective on July            variables. These variables include the
                                             addition, within the 10-fish aggregate                  23, 2018.                                              number of trap tags issued by the state
                                             snapper bag limit, no more than 5 fish                  ADDRESSES: Electronic copies of
                                                                                                                                                            of Florida, commercial and recreational
                                             may be mutton snapper.                                  Regulatory Amendment 4, which                          bag and possession limits in the Gulf
                                             *     *     *      *    *                               includes an environmental assessment                   and South Atlantic EEZ, and the
                                                                                                     and a regulatory flexibility analysis, and             duration of the fishing season, which
                                             ■ 4. In § 622.41, revise the last sentence
                                                                                                     a regulatory impact review, may be                     varies depending on the area where
                                             of paragraph (o) to read as follows:
                                                                                                     obtained from the Southeast Regional                   spiny lobsters are harvested.
                                             § 622.41 Annual catch limits (ACLs),                    Office website at http://                              Recreational Harvest of Spiny Lobster
                                             annual catch targets (ACTs), and                        sero.nmfs.noaa.gov/sustainable_
                                             accountability measures (AMs).
                                                                                                                                                            Using Traps in the South Atlantic EEZ
                                                                                                     fisheries/gulf_sa/spiny_lobster/A4_                       This final rule prohibits the use of
                                             *     *    *     *     *                                lobster_acl/a4_lobster_acl_index.html.
                                               (o) * * * The stock ACL for mutton                                                                           traps for recreational harvest of spiny
                                                                                                     FOR FURTHER INFORMATION CONTACT:                       lobster in all of the South Atlantic EEZ.
                                             snapper, in round weight, is 134,424 lb                 Nikhil Mehta, NMFS Southeast Regional
                                             (60,974 kg) for 2018, 139,392 lb (63,227                                                                          The Councils are concerned that using
                                                                                                     Office, telephone: 727–824–5305, or                    these traps for recreational harvest may
                                             kg) for 2019, and 143,694 lb (65,179 kg)                email: nikhil.mehta@noaa.gov.
                                             for 2020 and subsequent fishing years.                                                                         become more popular and result in
                                                                                                     SUPPLEMENTARY INFORMATION: The spiny                   potential negative impacts on essential
                                             *     *    *     *     *                                lobster fishery of the Gulf and the South              fish habitat and an increase in the use
                                             [FR Doc. 2018–13401 Filed 6–21–18; 8:45 am]
                                                                                                     Atlantic is managed under the FMP. The                 of vertical lines that may interact with
                                             BILLING CODE 3510–22–P
                                                                                                     FMP was prepared by the Councils and                   protected species, for example, by
                                                                                                     implemented through regulations at 50                  creating entanglement issues,
                                                                                                     CFR part 622 under the authority of the                continuing to fish after a trap is lost, or
                                             DEPARTMENT OF COMMERCE
                                                                                                     Magnuson-Stevens Fishery                               creating bycatch.
                                             National Oceanic and Atmospheric                        Conservation and Management Act
                                                                                                                                                            Measures in Regulatory Amendment 4
                                             Administration                                          (Magnuson-Stevens Act) (16 U.S.C. 1801
                                                                                                                                                            Not Codified Through This Final Rule
                                                                                                     et seq.).
                                             50 CFR Part 622                                            On February 2, 2018, NMFS                             As established in Amendment 10, the
                                                                                                     published a proposed rule for                          maximum sustainable yield (MSY)
                                             [Docket No. 170630611–8525–02]                          Regulatory Amendment 4 in the Federal                  proxy and maximum fishing mortality
                                                                                                     Register and requested public comment                  threshold (MFMT) are equal to the OFL,
                                             RIN 0648–BH01
                                                                                                     (83 FR 4890). Regulatory Amendment 4                   which was set at 7.9 million lb (3.58
                                             Fisheries of the Caribbean, Gulf of                     and the proposed rule outline the                      million kg). Consistent with
                                             Mexico, and South Atlantic; Spiny                       rationale for the actions contained in                 Amendment 10, Regulatory Amendment
                                             Lobster Fishery of the Gulf of Mexico                   this final rule. A summary of the                      4 would modify the MSY proxy and
                                             and South Atlantic Regions;                             management measures described in                       MFMT values, so that they are equal to
                                             Regulatory Amendment 4                                  Regulatory Amendment 4 and                             the revised OFL of 10.46 million lb (4.74
                                                                                                     implemented by this final rule is                      million kg).
                                             AGENCY:  National Marine Fisheries                      provided below.
                                             Service (NMFS), National Oceanic and                                                                           Measures in This Final Rule Not
                                             Atmospheric Administration (NOAA),                      Management Measures Contained in                       Included in Regulatory Amendment 4
                                             Commerce.                                               This Final Rule                                           In addition to implementing the
                                             ACTION: Final rule.                                       This final rule modifies the stock ACL               measures associated with Regulatory
                                                                                                     and annual catch target (ACT) for spiny                Amendment 4, this final rule corrects
                                             SUMMARY:   NMFS implements                                                                                     regulatory language that was mistakenly
daltland on DSKBBV9HB2PROD with RULES




                                                                                                     lobster and prohibits the use of traps for
                                             management measures described in                        the recreational harvest of spiny lobster              included in the final rule implementing
                                             Regulatory Amendment 4 to the Fishery                   in the South Atlantic EEZ.                             Amendment 10. This final rule changes
                                             Management Plan for Spiny Lobster in                                                                           50 CFR 622.407(c) to remove the phrase
                                             the Gulf of Mexico (Gulf) and South                     Stock ACL and ACT                                      ‘‘whichever is greater’’ and the first
                                             Atlantic (FMP), as prepared and                           This final rule revises the stock ACL                occurrence of a duplicative sentence.
                                             submitted by the Gulf and South                         and ACT based on the new acceptable                    This final rule also makes a minor


                                        VerDate Sep<11>2014   16:09 Jun 21, 2018   Jkt 244001   PO 00000   Frm 00068   Fmt 4700   Sfmt 4700   E:\FR\FM\22JNR1.SGM   22JNR1


                                                                  Federal Register / Vol. 83, No. 121 / Friday, June 22, 2018 / Rules and Regulations                                          29045

                                             wording revision to more directly state                 hurricanes, and to allow for accurate                  To avoid interaction of traps with
                                             that the total number of undersized                     estimates of the stock OFL and ABC.                    whales, it would be better to close the
                                             spiny lobster allowed on-board a vessel                    Response: NMFS agrees that is                       recreational fishing season for spiny
                                             is 50 plus 1 per trap.                                  appropriate to reevaluate the ABC,                     lobster in the EEZ off North Carolina
                                                                                                     which is used to set the catch limit,                  during the whale migration period.
                                             Comments and Responses                                  when relevant new information                             Response: NMFS does not agree that
                                                A total of 14 comments were received                 becomes available. That is what                        a season restriction on the use of traps
                                             on the proposed rule to implement                       occurred through the process leading to                for recreational harvest is appropriate.
                                             Regulatory Amendment 4. Comments                        up to the Council proposing Regulatory                 Potential interactions between traps and
                                             that were beyond the scope of the                       Amendment 4. As explained above, the                   protected species was one issue the
                                             proposed rule and comments that                         current OFL and ABC for spiny lobster                  Councils considered in deciding to
                                             agreed with the proposed actions are not                were established using the mean of the                 prohibit the use of traps for recreational
                                             responded to in this final rule. Other                  most recent 10 years of landings at that               harvest in the EEZ off all of the South
                                             comments that relate to the actions                     time (i.e., fishing years 2000/2001                    Atlantic states. However, the Councils
                                             contained in Regulatory Amendment 4                     through 2009/2010). The Councils’ SSCs                 were also concerned about bycatch and
                                             and the proposed rule are grouped as                    reevaluated this approach in 2016 in                   damage to habitat. Therefore, the
                                             appropriate and summarized below,                       response to a recommendation from a                    Councils did not consider seasonal
                                             followed by NMFS’ respective                            review panel, which was convened as                    restrictions for recreational harvest of
                                             responses.                                              required by the accountability measures                spiny lobster in Regulatory
                                                Comment 1: The ACL for spiny                         when landings exceeded the ACT. The                    Amendment 4.
                                             lobster should not be increased. The                    SSCs agreed with the review panel’s                       Comment 5: NMFS should allow the
                                             ACL should remain at its current level                  recommendation to use a longer time                    use of traps for recreational harvest in
                                             for another 5 years to allow the spiny                  series of landings (i.e., fishing years                the EEZ off Florida to make current
                                             lobster populations to increase.                        1991/1992 through 2015/2016) to re-                    spiny lobster regulations consistent in
                                                                                                     specify the OFL and ABC for spiny                      the EEZ off all the states in the South
                                                Response: NMFS disagrees. The new
                                                                                                     lobster. This resulted in the increase in              Atlantic region. The proposed rule did
                                             ACL is consistent with a new ABC
                                                                                                     the ACL and ACT implemented through                    not include any evidence that the
                                             recommendation by the Councils’ SSCs.
                                                                                                     this final rule. Regulatory Amendment 4                recreational sector is harming the
                                             The prior ABC recommendation was                                                                               resource or its habitat as a result of trap
                                                                                                     also states that a review panel should be
                                             based on a time period when landings                                                                           use.
                                                                                                     convened if there are 2 consecutive
                                             were historically low. The new ABC and                                                                            Response: NMFS disagrees that
                                                                                                     years of low landings (below 5.3 million
                                             the corresponding increase in the ACL                                                                          consistency in the regulations related to
                                                                                                     lb). Thus, there are mechanisms in place
                                             are based on a longer time period (1991/                                                                       recreational harvest by traps should be
                                                                                                     to respond to changes in harvest and
                                             1992 through 2015/2016) to better                                                                              achieved by allowing the use of traps in
                                                                                                     update the ACL as appropriate.
                                             capture the dynamics of the fishery that                   Comment 3: The increase in spiny                    the EEZ off Florida. Consistency was not
                                             are influenced by factors beyond spiny                  lobster ACL and prohibition of                         the basis for the Councils’ decision to
                                             lobster biology and harvest, such as                    recreational harvest using traps will                  prohibit the use of this gear. Although
                                             environmental, economic, and social                     allow more commercial harvest of spiny                 current recreational harvest using traps
                                             conditions. As described in Regulatory                  lobster. This will have an economic                    in the EEZ outside Florida is likely
                                             Amendment 4, increasing the ACL is                      impact on small business entities and                  minimal, the Councils were concerned
                                             not expected to negatively affect the                   therefore, as a result of increased                    that there could be an increase in the
                                             spiny lobster population because fishing                commercial harvest, NMFS should                        use of recreational traps and associated
                                             effort is not expected to increase.                     prepare an initial regulatory flexibility              negative impacts. As discussed in
                                             Current fishing effort is limited by such               act analysis (IRFA) to better address the              Regulatory Amendment 4, trap gear can
                                             measures as the number of commercial                    economic impacts of these actions.                     negatively affect the bottom substrate,
                                             trap tags issued by the state of Florida,                  Response: NMFS disagrees that it is                 entangle protected species, and
                                             commercial and recreational bag and                     necessary to prepare an IRFA. As stated                continue ghost fishing when the trap is
                                             possession limits in the South Atlantic                 in the Classification section of the                   lost. Because the majority of spiny
                                             and Gulf EEZ, and the duration of the                   proposed rule and again in this final                  lobster harvest occurs in the EEZ off
                                             fishing seasons, which varies based on                  rule, the increase in the ACL and ACT                  Florida, opening this area to recreational
                                             location. Further, maintaining the                      for spiny lobster will have no impact on               traps would be expected to increase
                                             current ACL for 5 years would not                       small commercial fishing businesses                    these negatives impacts. In addition,
                                             necessarily allow for the spiny lobster                 because the AMs do not require a                       because spiny lobsters are larger in the
                                             populations to increase in U.S. waters.                 closure or otherwise limit commercial                  EEZ off Georgia, South Carolina, and
                                             Spiny lobster is widely distributed                     landings of spiny lobster taken from                   North Carolina than in Florida, traps in
                                             throughout the western Atlantic Ocean                   Federal waters if landings reach or                    those areas would require larger mouths
                                             from as far north as North Carolina to                  exceed the ACL or ACT. Further, the                    (entrances) that would likely increase
                                             as far south as Brazil, including                       majority of commercial harvest of spiny                bycatch. Recreational harvest is still
                                             Bermuda, The Bahamas, Caribbean, and                    lobster occurs off Florida, and effort is              permitted with dive and snorkel gears,
                                             Central America. Genetic studies show                   limited by the number of trap tags                     which are the predominant gears used
                                             that most larval recruits in U.S. waters                issued by the state of Florida,                        by the recreational sector, and these
                                             are from elsewhere in the Caribbean,                    commercial limits, and the length of the               gears do not have the same impact on
                                             with only 10–40 percent locally
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                                                                                                     fishing season. Therefore, any reduction               habitat and other species as traps do.
                                             spawned larvae retained in U.S. waters.                 in the use of traps for recreational                      Comment 6: Commercial harvest of
                                                Comment 2: The timeframe used to                     harvest is not expected to increase                    spiny lobster has fluctuated, while
                                             specify catch limits for spiny lobster                  commercial harvest.                                    recreational harvest, a small part of
                                             should be continuously updated to                          Comment 4: NMFS should not                          overall harvest, has remained
                                             incorporate periods of low and high                     prohibit the use of traps for recreational             consistent. In order to protect the
                                             landings, natural disasters such as                     harvest in the EEZ off North Carolina.                 resource, there should be restrictions on


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                                             29046                      Federal Register / Vol. 83, No. 121 / Friday, June 22, 2018 / Rules and Regulations

                                             both the commercial and recreational                                    duplicative, overlapping, or conflicting                               and opportunity for public comment
                                             sectors.                                                                Federal rules have been identified. In                                 pursuant to the authority set forth in 5
                                               Response: Restrictions are already in                                 addition, no new reporting, record-                                    U.S.C. 553(b)(B), as such procedures are
                                             place for spiny lobster in place for both                               keeping, or other compliance                                           unnecessary. Such procedures are
                                             the commercial and recreational sectors,                                requirements are introduced by this                                    unnecessary because the rule
                                             and this final rule will not remove these                               final rule.                                                            implementing the provision has been
                                             restrictions. Commercial and                                               The Chief Counsel for Regulation of                                 subject to notice and comment and the
                                             recreational bag and possession limits,                                 the Department of Commerce certified                                   revision corrects only a typographical
                                             and fishing seasons for spiny lobster are                               to the Chief Counsel for Advocacy of the                               error.
                                             in place to control harvest. Any person                                 Small Business Administration during
                                             who commercially fishes for and sells                                                                                                          List of Subjects in 50 CFR Part 640
                                                                                                                     the proposed rule stage that this final
                                             spiny lobster caught in either the Gulf                                 rule would not have a significant                                        Fisheries, Fishing, Gulf, South
                                             or South Atlantic EEZ, except off                                       economic impact on a substantial                                       Atlantic, Spiny lobster, Trap.
                                             Florida, must have a Federal spiny                                      number of small entities. The factual                                    Dated: June 18, 2018.
                                             lobster vessel permit. Any person who                                   basis for this determination was
                                             commercially fishes for spiny lobster                                                                                                          Samuel D. Rauch III,
                                                                                                                     published in the proposed rule and is                                  Deputy Assistant Administrator for
                                             caught in the EEZ off Florida, or sells                                 not repeated here.
                                             spiny lobster in Florida must have the                                                                                                         Regulatory Programs, National Marine
                                                                                                                        One public comment (Comment 3)                                      Fisheries Service.
                                             permits and licenses required by Florida                                stated that the increase in commercial
                                             (http://www.myfwc.com/fishing/                                          harvest would have an economic impact                                    For the reasons set out in the
                                             saltwater/commercial/spiny-lobster/).                                   on small entities and therefore an IRFA                                preamble, 50 CFR parts 600 and 622 are
                                             There are also requirements related to                                  analysis must be prepared. As stated in                                amended as follows:
                                             gear and vessel identification, and trap                                the Classification section of the
                                             construction.                                                                                                                                  PART 600—MAGNUSON-STEVENS
                                                                                                                     proposed rule, although the rule would
                                                                                                                                                                                            ACT PROVISIONS
                                             Changes From the Proposed Rule                                          increase the ACL and ACT, there would
                                                                                                                     be no impact on small commercial                                       ■ 1. The authority citation for part 600
                                               This final rule revises a reference to
                                                                                                                     fishing businesses because there are no                                continues to read as follows:
                                             a boundary point coordinate for the
                                                                                                                     AMs that can either close the Federal
                                             Tortugas shrimp sanctuary in 50 CFR                                                                                                               Authority: 5 U.S.C. 561 and 16 U.S.C. 1801
                                                                                                                     season early or otherwise limit
                                             622.55(c)(2)(iii), which incorrectly refers                                                                                                    et seq.
                                                                                                                     commercial landings of spiny lobster
                                             to paragraph (d)(1) rather than
                                                                                                                     taken from Federal waters if landings                                  Subpart R—Spiny Lobster Fishery of
                                             paragraph (c)(1).
                                                                                                                     reach or exceed the ACL or ACT.                                        the Gulf of Mexico and South Atlantic
                                             Classification                                                             No changes were made to the final
                                                The Regional Administrator,                                          rule in response to public comments,                                   ■ 2. In § 600.725, in the table in
                                             Southeast Region, NMFS has                                              and NMFS has not received any new                                      paragraph (v), under heading ‘‘III. South
                                             determined that this final rule is                                      information that would affect its                                      Atlantic Fishery Management Council,’’
                                             consistent with Regulatory Amendment                                    previous determination. As a result, a                                 under entry 7, revise entry B pertaining
                                             4, the FMP, the Magnuson-Stevens Act,                                   final regulatory flexibility analysis is not                           to the ‘‘Recreational fishery’’ in the
                                             and other applicable law.                                               required and none was prepared.                                        ‘‘Authorized gear types’’ column to read
                                                This final rule has been determined to                                  The Assistant Administrator for                                     as follows:
                                             be not significant for purposes of                                      NOAA Fisheries finds that with respect
                                             Executive Order 12866.                                                  to the change to 50 CFR 622.55(c)(2)(iii)                              § 600.725    General prohibitions.
                                                The Magnuson-Stevens Act provides                                    there is good cause to waive the                                       *       *    *       *      *
                                             the statutory basis for this rule. No                                   requirements to provide prior notice                                       (v) * * *

                                                                                                             Fishery                                                                                     Authorized gear types


                                                          *                              *                               *                            *                              *                       *                    *

                                                                                                                  III. South Atlantic Fishery Management Council


                                                      *                    *                                             *                            *                              *                       *                    *
                                             7. South Atlantic Spiny Lobster Fishery (FMP):.

                                                      *                         *                                *                                 *                                 *                       *                    *
                                             B. Recreational fishery ....................................................................................................................   B. Dip net, bully net, snare, hand harvest.

                                                          *                              *                               *                            *                              *                       *                    *



                                             *        *        *        *         *                                  PART 622—FISHERIES OF THE                                              ■ 4. In § 622.55, revise paragraph
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                                                                                                                     CARIBBEAN, GULF OF MEXICO, AND                                         (c)(2)(iii) to read as follows:
                                                                                                                     SOUTH ATLANTIC
                                                                                                                                                                                            § 622.55    Closed areas.
                                                                                                                     ■ 3. The authority citation for part 622                               *       *    *       *      *
                                                                                                                     continues to read as follows:                                              (c) * * *
                                                                                                                         Authority: 16 U.S.C. 1801 et seq.                                      (2) * * *


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                                                                  Federal Register / Vol. 83, No. 121 / Friday, June 22, 2018 / Rules and Regulations                                               29047

                                               (iii) Effective from May 26 through                   § 622.188 and § 622.248, respectively,                 well must provide a minimum of 3⁄4
                                             July 31, each year, that part of the                    the possession of all other traps is                   gallons (1.7 liters) of seawater per spiny
                                             Tortugas shrimp sanctuary seaward of                    prohibited onboard a vessel in the South               lobster. An undersized spiny lobster so
                                             rhumb lines connecting the following                    Atlantic EEZ when spiny lobster subject                retained must be released to the water
                                             points is open to trawling: From point                  to the recreational bag and possession                 alive and unharmed immediately upon
                                             F, as specified in paragraph (c)(1) of this             limits specified in § 622.408 is also                  leaving the trap lines and prior to 1 hour
                                             section, to point Q at 24°46.7′ N lat.,                 onboard the vessel. The recreational                   after official sunset each day. No more
                                             81°52.2′ W long. (on the line denoting                  harvest of spiny lobster using a trap is               than 50 undersized spiny lobsters plus
                                             the seaward limit of Florida’s waters);                 prohibited in the South Atlantic EEZ.                  1 per trap aboard the vessel may be
                                             thence along the seaward limit of                       ■ 6. In § 622.407, revise paragraph (c) to             retained aboard for use as attractants.
                                             Florida’s waters, as shown on the                       read as follows:                                       *     *      *    *      *
                                             current edition of NOAA chart 11439, to                                                                        ■ 7. Revise § 622.411 to read as follows:
                                             point U and north to point T, both                      § 622.407 Minimum size limits and other
                                             points as specified in paragraph (c)(2)(i)              harvest limitations.                                   § 622.411 Annual catch limits (ACLs),
                                             of this section.                                        *      *    *      *    *                              annual catch targets (ACTs), and
                                             *      *     *     *    *                                                                                      accountability measures (AMs).
                                                                                                        (c) Undersized attractants. A live
                                                                                                     spiny lobster under the minimum size                     For recreational and commercial
                                             ■ 5. In § 622.404, add paragraph (d) to
                                                                                                     limit specified in paragraph (a)(1) of this            spiny lobster landings combined, the
                                             read as follows:
                                                                                                     section that is harvested in the EEZ by                ACL is 9.60 million lb (4.35 million kg),
                                             § 622.404   Prohibited gear and methods.                a trap may be retained aboard the                      whole weight. The ACT is 8.64 million
                                             *     *    *     *     *                                harvesting vessel for future use as an                 lb, (3.92 million kg) whole weight.
                                               (d) Except for black sea bass pots and                attractant in a trap provided it is held               [FR Doc. 2018–13400 Filed 6–21–18; 8:45 am]
                                             golden crab traps as allowed in                         in a live well aboard the vessel. The live             BILLING CODE 3510–22–P
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Document Created: 2018-11-06 09:50:08
Document Modified: 2018-11-06 09:50:08
CategoryRegulatory Information
CollectionFederal Register
sudoc ClassAE 2.7:
GS 4.107:
AE 2.106:
PublisherOffice of the Federal Register, National Archives and Records Administration
SectionRules and Regulations
ActionFinal rule.
DatesThis final rule is effective on July 23, 2018.
ContactNikhil Mehta, NMFS Southeast Regional Office, telephone: 727-824-5305, or email: [email protected]
FR Citation83 FR 29044 
RIN Number0648-BH01

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