83_FR_57616 83 FR 57395 - Magnuson-Stevens Act Provisions; Fisheries of the Northeastern United States; Northeast Multispecies Fishery; Approval of New Gear Under Small-Mesh Fisheries Accountability Measures

83 FR 57395 - Magnuson-Stevens Act Provisions; Fisheries of the Northeastern United States; Northeast Multispecies Fishery; Approval of New Gear Under Small-Mesh Fisheries Accountability Measures

DEPARTMENT OF COMMERCE
National Oceanic and Atmospheric Administration

Federal Register Volume 83, Issue 221 (November 15, 2018)

Page Range57395-57398
FR Document2018-24975

We propose to approve new selective trawl gear for use in several non-groundfish fisheries when subject to the Georges Bank yellowtail flounder accountability measure. The proposed selective gear would reduce bycatch of groundfish species, while allowing the target fisheries to continue operating when selective trawl gear is required. Approving this selective trawl gear would provide the fishing industry with more flexibility because there are limited selective trawl gears currently approved for use. We also propose to disapprove the use of this gear in the southern windowpane accountability measure areas.

Federal Register, Volume 83 Issue 221 (Thursday, November 15, 2018)
[Federal Register Volume 83, Number 221 (Thursday, November 15, 2018)]
[Proposed Rules]
[Pages 57395-57398]
From the Federal Register Online  [www.thefederalregister.org]
[FR Doc No: 2018-24975]


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DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

50 CFR Part 648

[Docket No. 151124999-8985-01]
RIN 0648-BF57


Magnuson-Stevens Act Provisions; Fisheries of the Northeastern 
United States; Northeast Multispecies Fishery; Approval of New Gear 
Under Small-Mesh Fisheries Accountability Measures

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

ACTION: Proposed rule; request for comments.

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SUMMARY: We propose to approve new selective trawl gear for use in 
several non-groundfish fisheries when subject to the Georges Bank 
yellowtail flounder accountability measure. The proposed selective gear 
would reduce bycatch of groundfish species, while allowing the target 
fisheries to continue operating when selective trawl gear is required. 
Approving this selective trawl gear would provide the fishing industry 
with more flexibility because there are limited selective trawl gears 
currently approved for use. We also propose to disapprove the use of 
this gear in the southern windowpane accountability measure areas.

DATES: Written comments must be received on or before December 17, 
2018.

ADDRESSES: You may submit comments, identified by NOAA-NMFS-2018-0119, 
by either of the following methods:
     Electronic Submission: Submit all electronic public 
comments via the Federal eRulemaking Portal.
    1. Go to www.regulations.gov/#!docketDetail;D=NOAA-NMFS-2018-0119;
    2. Click the ``Comment Now!'' icon and complete the required 
fields; and
    3. Enter or attach your comments.
     Mail: Submit written comments to Michael Pentony, Regional 
Administrator, National Marine Fisheries Service, 55 Great Republic 
Drive, Gloucester, MA 01930. Mark the outside of the envelope, 
``Comments on the Proposed Rule for Selective Gear.''
    Instructions: All comments received that were timely and properly 
submitted are a part of the public record and will generally be posted 
for public viewing on www.regulations.gov without change. All personal 
identifying information (e.g., name, address, etc.), confidential 
business information, or otherwise sensitive information submitted 
voluntarily by the sender will be publicly accessible. We will accept 
anonymous comments (enter ``N/A'' in the required fields if you wish to 
remain anonymous). Comments sent by any other method, to any other 
address or individual, or received after the end of the comment period, 
may not be considered by us.

FOR FURTHER INFORMATION CONTACT: Emily Keiley, Fishery Management 
Specialist, phone: (978) 281-9116; email: [email protected].

SUPPLEMENTARY INFORMATION: 

Background

    The Northeast Multispecies Fishery Management Plan (FMP) requires 
the use of selective trawl gear in certain times and areas. The FMP 
specifies the list of selective trawl gear that meet the required 
selectivity standards. The FMP also authorizes NMFS to approve 
additional selective gear, at the request of the New England Fishery 
Management Council, if the gear meets the regulatory requirements for 
new selective gear. The regulations (Sec.  648.85(b)(6)(iv)(J)(2)(i)) 
require that new selective gear must either: Demonstrate a 
statistically significant reduction in catch of at least 50 percent, by 
weight, on a trip-by-trip basis, of each regulated species stock of 
concern, or, catch of stocks of concern must be less than 5 percent of 
the total catch of regulated groundfish (by weight, on a trip-by-trip 
basis). The Council submitted two requests to add the large-mesh belly 
panel to the list of approved selective gears: (1) For the Georges Bank 
yellowtail accountability measure (AM); and (2) for the southern 
windowpane AM.
    The small-mesh trawl fishery (e.g., whiting and squid) has a sub-
annual catch limit (sub-ACL) and AM for Georges Bank yellowtail 
flounder. If catch exceeds the sub-ACL, the AM requires small-mesh 
trawl vessels to use selective trawl gear that reduces flatfish catch 
in certain areas for the subsequent fishing year.
    Southern windowpane flounder is allocated to three fishery 
components: Groundfish; scallops; and, other non-groundfish fisheries. 
The other (non-groundfish) component is primarily the scup, fluke, 
squid, and whiting fisheries. If the AM for the other (non-groundfish) 
component is triggered, vessels fishing with any trawl gear with a 
codend mesh size greater than, or equal to 5 in (12.7 cm), are required 
to use one of the approved selective trawl gears to reduce flatfish 
bycatch in certain areas in Southern New England in a subsequent year.
    The selective trawl gears approved for use under these AMs are: 
Haddock separator trawl; Ruhle trawl; and rope separator trawl. When we 
adopted the AMs for the non-groundfish fisheries, many industry members 
expressed concern that the selective trawl gears currently approved for 
use were not suitable for their fisheries. To address this concern, 
Cornell University conducted a series of studies to test the 
effectiveness of a new selective gear, the large-mesh belly panel, in 
several non-groundfish fisheries. The experimental gear included a 
large-mesh panel to replace the first bottom belly of the trawl net 
that allows flatfish such as windowpane and yellowtail flounder to 
escape.
    Cornell University conducted two studies in 2014 to investigate 
using a large-mesh belly panel in a small-mesh trawl net typical of 
those used in the squid and whiting fisheries on Georges Bank. Both 
experiments demonstrated a statistically significant reduction in catch 
of more than 50 percent of Georges Bank yellowtail flounder on a trip-
by-trip basis, as required by regulations, without a significant 
reduction in squid and whiting catch. These studies also demonstrated 
that the large-mesh belly panel reduced catch, by more than 50 percent 
per trip, of stocks that are overfished or subject to overfishing.
    Cornell University conducted an additional study in 2015 to 
investigate using a large-mesh belly panel in a trawl net typical of 
those used in the scup fishery in southern New England

[[Page 57396]]

waters. The experiment demonstrated a statistically significant 
reduction in southern windowpane flounder catch of more than 50 
percent, without a significant reduction in catch of legal-sized scup. 
Catch in the large-mesh belly panel gear was compared to catch in the 
standard net, and three regulated stocks of concern were caught in 
significant numbers in the standard net. The percent reduction by trip, 
and the mean percent reduction, for each species is presented in Table 
1; trips that do not meet the 50 percent reduction standard are 
highlighted in gray. Catches, on average, of yellowtail and winter 
flounder were only reduced by 48 percent when the large-mesh belly 
panel was used.
[GRAPHIC] [TIFF OMITTED] TP15NO18.001

Proposed Action

    Based on the results of the studies described above (copies 
available from NMFS at the mailing address listed under ADDRESSES), we 
have preliminarily determined that the large-mesh belly panel meets the 
necessary gear performance standards for use in the Georges Bank 
yellowtail AM area, and we are proposing to approve the use of this 
gear in that area. The large-mesh belly panel would be added to the 
list of three existing selective gears currently authorized for use in 
the Georges Bank yellowtail AM area. We have also preliminarily 
determined that the large-mesh belly panel does not meet the gear 
standard in the southern windowpane AM area, and we are proposing to 
disapprove its use in that area.
    This action would define the large-mesh belly panel in the 
regulations in Sec.  648.80. The proposed gear specifications included 
in this rule are based on the experimental gear used in the Cornell 
studies. The experimental selective gear was a 4-seam 3-bridal otter 
trawl, modified to include a large-mesh panel to replace the first 
bottom belly that allows escapement of flatfish. The large-mesh panel 
was made from 5 mm (\3/16\ in) poly webbing and the mesh size was 
approximately 32 in (81.3 cm) knot-center to knot-center diamond mesh. 
The panel was two meshes deep and was sewn into the standard mesh of 
the first bottom belly using a ``saw-toothing'' technique. This 
resulted in an effective area for fish escapement of three full 32-in 
(81.3-cm) meshes, or an opening in the belly of the net that is 
approximately 8 ft (2.4 m) deep from front to back. The large-mesh 
belly panel was attached approximately 1 ft (30.5 cm) behind the 
footrope and extended widthwise across the entire belly of the net 
(from gore to gore). Because it is important that the large-mesh belly 
panel gear definition balance the conservation requirements and 
adaptability of the gear modifications across multiple fisheries, we 
are requesting specific comments on this gear configuration.

Classification

    Pursuant to section 304(b)(1)(A) of the Magnuson-Stevens Act, the 
National Marine Fisheries Service (NMFS) Assistant Administrator has 
made a preliminary determination that this proposed rule is consistent 
with Framework 51, other provisions of the Magnuson-Stevens Act, and 
other applicable law. In making the final determination, we will 
consider the data, views, and comments received during the public 
comment period.
    This proposed rule has been determined to be not significant for 
purposes of Executive Order (E.O.) 12866.
    This proposed rule does not contain policies with Federalism or 
takings implications as those terms are defined in E.O. 13132 and E.O. 
12630, respectively.
    The Chief Counsel for Regulation of the Department of Commerce 
certified to the Chief Counsel for Advocacy of the Small Business 
Administration that this proposed rule, if adopted, would not have a 
significant economic impact on a substantial number of small entities. 
The factual determination for this determination is as follows.
    The Council requested that we approve a new selective trawl gear 
(the large-mesh belly panel) for use in several non-groundfish 
fisheries to reduce groundfish bycatch. For some stocks, non-groundfish 
fisheries have an AM that requires the use of selective trawl gear when 
the ACL has been exceeded. Most of the approved selective trawls are 
not designed for use in these fisheries, and the large-mesh belly panel 
would provide these fisheries a better alternative than what is 
currently available. The requirement to use selective trawl gear was 
adopted in 2013. This rule would provide vessels an alternative 
selective gear for meeting that requirement, which would provide 
additional fishing opportunities, increase operational flexibility, and 
improve economic efficiency. This action is necessary to allow the 
fisheries to more effectively harvest its optimum yield, while 
continuing to reduce bycatch of windowpane and yellowtail flounder. 
This action seeks to fulfill the purpose and need while meeting the 
overarching goals and objectives of the Northeast Multispecies FMP.
    For purposes of the Regulatory Flexibility Act, NMFS established a 
small business size standard for businesses, including their 
affiliates, whose primary industry is commercial fishing (see 50 CFR 
200.2). A business

[[Page 57397]]

primarily engaged in commercial fishing (NAICS code 11411) is 
classified as a small business if it is independently owned and 
operated, is not dominant in its field of operation (including its 
affiliates), and has combined annual receipts not in excess of $11 
million for all its affiliated operations worldwide. The determination 
of whether the entity is large or small is based on the average annual 
revenue for the most recent 3 years for which data are available (in 
this case, from 2014 through 2016).
    The small-mesh exempted fishery allows vessels to harvest species 
in designated areas using mesh sizes smaller than the minimum mesh size 
required by Regulated Mesh Area regulations. To participate in the 
small-mesh multispecies exempted fishery, vessels must possess either a 
limited access multispecies permit (categories A, C, D, E, or F) or an 
open access multispecies permit (category K). Limited access 
multispecies permit holders can target small-mesh multispecies with 
different possession limit requirements depending on fishing region and 
mesh size used. Open access, Category K permit holders may fish for 
small-mesh multispecies when participating in an exempted fishing 
program. Therefore, entities holding one or more multispecies permits 
(permit type A, C-F, K) are the entities that have the potential to be 
directly impacted by this action. According to the commercial database, 
there were 853 distinct ownership entities, based on entities' 
participation during the 2014-2016 time-period, that could potentially 
target small-mesh multispecies. This includes entities that could not 
be classified into a business type because they did not earn revenue 
from landing and selling fish in 2014-2016 and thus are considered to 
be small. Of the 853 total firms, 844 are categorized as small business 
entities and 9 are categorized as large businesses. While 853 
commercial entities have the potential to be impacted by the proposed 
action, not all of these entities actively land small-mesh multispecies 
for commercial sale. There are 406 distinct entities that commercially 
sold small-mesh multispecies from 2014-2016 and may be directly 
affected by the proposed action. Of those, 404 are categorized as small 
businesses.
    The measures proposed are expected to have a positive economic 
effect on small entities. It could increase catch of target stocks, in 
a scenario when fishing would otherwise be prohibited. Providing 
increased fishing opportunities should increase landings and profits. 
This action is not expected to have a significant or substantial effect 
on small entities. The effects on the regulated small entities 
identified in this analysis are expected to be positive relative to the 
no action alternative, in which this new selective trawl gear would not 
be added to the list of approved selective gears. Under the proposed 
action, small entities would not be placed at a competitive 
disadvantage relative to large entities, and the regulations would not 
reduce the profit for any small entities. As a result, an initial 
regulatory flexibility analysis is not required and none has been 
prepared.
    This proposed rule contains a collection-of-information requirement 
subject to review and approval by OMB under the Paperwork Reduction Act 
(PRA). This requirement will be submitted to OMB for approval. Public 
reporting burden for the selection of the gear code is estimated to 
average one minute per response, including the time for reviewing 
instructions, searching existing data sources, gathering and 
maintaining the data needed, and completing and reviewing the 
collection of information.
    Public comment is sought regarding: Whether this proposed 
collection of information is necessary for the proper performance of 
the functions of the agency, including whether the information shall 
have practical utility; the accuracy of the burden estimate; ways to 
enhance the quality, utility, and clarity of the information to be 
collected; and ways to minimize the burden of the collection of 
information, including through the use of automated collection 
techniques or other forms of information technology. Send comments on 
these or any other aspects of the collection of information to NMFS at 
the ADDRESSES above, and by email to [email protected] or fax 
to (202) 395-7285.
    Notwithstanding any other provision of the law, no person is 
required to respond to, and no person shall be subject to penalty for 
failure to comply with, a collection of information subject to the 
requirements of the PRA, unless that collection of information displays 
a currently valid OMB control number.

List of Subjects in 50 CFR Part 648

    Fisheries, Fishing, Recordkeeping and reporting requirements.

    Dated: November 9, 2018.
Samuel D. Rauch III,
Deputy Assistant Administrator for Regulatory Programs, National Marine 
Fisheries Service.

    For the reasons stated in the preamble, 50 CFR part 648 is proposed 
to be amended as follows:

PART 648--FISHERIES OF THE NORTHEASTERN UNITED STATES

0
1. The authority citation for part 648 continues to read as follows:

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

0
2. In Sec.  648.84, add paragraph (f) to read as follows:


Sec.  648.84   Gear-marking requirements and gear restrictions.

* * * * *
    (f) Large-mesh belly panel trawl. A large-mesh belly panel trawl is 
defined as a four-seam bottom trawl net (i.e., a net with a top and 
bottom panel and two side panels) modified to include a large-mesh 
panel to replace the first bottom belly, as further specified in 
paragraphs (f)(1) and (2) of this section.
    (1) Mesh size. The minimum mesh size applied throughout the body of 
the trawl, as well as the codend mesh size, must be consistent with 
mesh size requirements specified in Sec.  648.80. If a vessel is 
fishing in an exemption area or an exempted fishery, it must comply 
with all of the requirements and conditions of the exemption.
    (2) Large-mesh belly panel. The large-mesh belly panel must have a 
minimum mesh size of 30 in (76.2 cm) measured using the standard 
defined in Sec.  648.80(f)(2). The width of the panel must extend the 
full width of the bottom panel (i.e., from one bottom gore to the other 
bottom gore). The depth must be at least 90 in (228.6 cm) and at least 
3 meshes deep (2 meshes deep with a 15-in (38.1-cm) sewing seam on top 
and bottom). No more than six meshes of the small-mesh net may be left 
behind the sweep, before the large-mesh panel is sewn in.
0
3. In Sec.  648.90, revise paragraph (a)(5)(v), to read as follows:


Sec.  648.90  NE multispecies assessment, framework procedures, and 
specifications, and flexible area action system.

    (a) * * *
    (5) * * *
    (v) AM if the small-mesh fisheries GB yellowtail flounder sub-ACL 
is exceeded. If NMFS determines that the sub-ACL of GB yellowtail 
flounder allocated to the small-mesh fisheries, pursuant to paragraph 
(a)(4)(iii)(G) of this section, is exceeded, NMFS shall implement the 
AM specified in this paragraph consistent with the Administrative 
Procedures Act. The AM requires that small-mesh fisheries vessels, as 
defined in paragraph (a)(4)(iii)(G)(1) of this section, use one of the 
following approved selective trawl gear in the GB yellowtail flounder 
stock area, as defined at Sec.  648.85(b)(6)(v)(H): A haddock separator 
trawl, as specified

[[Page 57398]]

in Sec.  648.85(a)(3)(iii)(A); a Ruhle trawl, as specified in Sec.  
648.85(b)(6)(iv)(J)(3); a rope separator trawl, as specified in Sec.  
648.84(e); a large-mesh belly panel trawl, as specified in Sec.  
648.84(f); or any other gear approved consistent with the process 
defined in Sec.  648.85(b)(6). If reliable information is available, 
the AM shall be implemented in the fishing year immediately following 
the year in which the overage occurred only if there is sufficient time 
to do so in a manner consistent with the Administrative Procedures Act. 
Otherwise, the AM shall be implemented in the second fishing year after 
the fishing year in which the overage occurred. For example, if NMFS 
determined after the start of Year 2 that the small-mesh fisheries sub-
ACL for GB yellowtail flounder was exceeded in Year 1, the applicable 
AM would be implemented at the start of Year 3. If updated catch 
information becomes available subsequent to the implementation of an AM 
that indicates that an overage of the small-mesh fisheries sub-ACL did 
not occur, NMFS shall rescind the AM, consistent with the 
Administrative Procedure Act.
* * * * *
[FR Doc. 2018-24975 Filed 11-14-18; 8:45 am]
 BILLING CODE 3510-22-P



                                                                    Federal Register / Vol. 83, No. 221 / Thursday, November 15, 2018 / Proposed Rules                                          57395

                                                manner that is inconsistent with the                    ADDRESSES:    You may submit comments,                selective gears: (1) For the Georges Bank
                                                minimum mesh size. A net that is                        identified by NOAA–NMFS–2018–0119,                    yellowtail accountability measure (AM);
                                                stowed and not available for immediate                  by either of the following methods:                   and (2) for the southern windowpane
                                                use as defined in § 648.2, and that can                    • Electronic Submission: Submit all                AM.
                                                be shown not to have been in recent use,                electronic public comments via the                       The small-mesh trawl fishery (e.g.,
                                                is considered to be not available for                   Federal eRulemaking Portal.                           whiting and squid) has a sub-annual
                                                immediate use.                                             1. Go to www.regulations.gov/                      catch limit (sub-ACL) and AM for
                                                *     *     *    *     *                                #!docketDetail;D=NOAA-NMFS-2018-                      Georges Bank yellowtail flounder. If
                                                ■ 3. Section 648.146 is revised to read                 0119;                                                 catch exceeds the sub-ACL, the AM
                                                as follows:                                                2. Click the ‘‘Comment Now!’’ icon                 requires small-mesh trawl vessels to use
                                                                                                        and complete the required fields; and                 selective trawl gear that reduces flatfish
                                                § 648.146 Black sea bass recreational                      3. Enter or attach your comments.                  catch in certain areas for the subsequent
                                                fishing season.
                                                                                                           • Mail: Submit written comments to                 fishing year.
                                                  Vessels that are not eligible for a                   Michael Pentony, Regional                                Southern windowpane flounder is
                                                moratorium permit under § 648.4(a)(7),                  Administrator, National Marine                        allocated to three fishery components:
                                                and fishermen subject to the possession                 Fisheries Service, 55 Great Republic                  Groundfish; scallops; and, other non-
                                                limit specified in § 648.145(a), may only               Drive, Gloucester, MA 01930. Mark the                 groundfish fisheries. The other (non-
                                                possess black sea bass from February 1                  outside of the envelope, ‘‘Comments on                groundfish) component is primarily the
                                                through February 28, May 15 through                     the Proposed Rule for Selective Gear.’’               scup, fluke, squid, and whiting
                                                December 31, unless this time period is                    Instructions: All comments received                fisheries. If the AM for the other (non-
                                                adjusted pursuant to the procedures in                  that were timely and properly submitted               groundfish) component is triggered,
                                                § 648.142.                                              are a part of the public record and will              vessels fishing with any trawl gear with
                                                [FR Doc. 2018–24946 Filed 11–14–18; 8:45 am]            generally be posted for public viewing                a codend mesh size greater than, or
                                                BILLING CODE 3510–22–P                                  on www.regulations.gov without change.                equal to 5 in (12.7 cm), are required to
                                                                                                        All personal identifying information                  use one of the approved selective trawl
                                                                                                        (e.g., name, address, etc.), confidential             gears to reduce flatfish bycatch in
                                                DEPARTMENT OF COMMERCE                                  business information, or otherwise                    certain areas in Southern New England
                                                                                                        sensitive information submitted                       in a subsequent year.
                                                National Oceanic and Atmospheric                                                                                 The selective trawl gears approved for
                                                                                                        voluntarily by the sender will be
                                                Administration                                                                                                use under these AMs are: Haddock
                                                                                                        publicly accessible. We will accept
                                                                                                        anonymous comments (enter ‘‘N/A’’ in                  separator trawl; Ruhle trawl; and rope
                                                50 CFR Part 648                                                                                               separator trawl. When we adopted the
                                                                                                        the required fields if you wish to remain
                                                [Docket No. 151124999–8985–01]                                                                                AMs for the non-groundfish fisheries,
                                                                                                        anonymous). Comments sent by any
                                                                                                                                                              many industry members expressed
                                                RIN 0648–BF57                                           other method, to any other address or
                                                                                                                                                              concern that the selective trawl gears
                                                                                                        individual, or received after the end of
                                                                                                                                                              currently approved for use were not
                                                Magnuson-Stevens Act Provisions;                        the comment period, may not be
                                                                                                                                                              suitable for their fisheries. To address
                                                Fisheries of the Northeastern United                    considered by us.
                                                                                                                                                              this concern, Cornell University
                                                States; Northeast Multispecies                          FOR FURTHER INFORMATION CONTACT:                      conducted a series of studies to test the
                                                Fishery; Approval of New Gear Under                     Emily Keiley, Fishery Management                      effectiveness of a new selective gear, the
                                                Small-Mesh Fisheries Accountability                     Specialist, phone: (978) 281–9116;                    large-mesh belly panel, in several non-
                                                Measures                                                email: Emily.Keiley@noaa.gov.                         groundfish fisheries. The experimental
                                                AGENCY:  National Marine Fisheries                      SUPPLEMENTARY INFORMATION:                            gear included a large-mesh panel to
                                                Service (NMFS), National Oceanic and                                                                          replace the first bottom belly of the
                                                                                                        Background
                                                Atmospheric Administration (NOAA),                                                                            trawl net that allows flatfish such as
                                                Commerce.                                                  The Northeast Multispecies Fishery                 windowpane and yellowtail flounder to
                                                ACTION: Proposed rule; request for
                                                                                                        Management Plan (FMP) requires the                    escape.
                                                comments.                                               use of selective trawl gear in certain                   Cornell University conducted two
                                                                                                        times and areas. The FMP specifies the                studies in 2014 to investigate using a
                                                SUMMARY:   We propose to approve new                    list of selective trawl gear that meet the            large-mesh belly panel in a small-mesh
                                                selective trawl gear for use in several                 required selectivity standards. The FMP               trawl net typical of those used in the
                                                non-groundfish fisheries when subject                   also authorizes NMFS to approve                       squid and whiting fisheries on Georges
                                                to the Georges Bank yellowtail flounder                 additional selective gear, at the request             Bank. Both experiments demonstrated a
                                                accountability measure. The proposed                    of the New England Fishery                            statistically significant reduction in
                                                selective gear would reduce bycatch of                  Management Council, if the gear meets                 catch of more than 50 percent of
                                                groundfish species, while allowing the                  the regulatory requirements for new                   Georges Bank yellowtail flounder on a
                                                target fisheries to continue operating                  selective gear. The regulations                       trip-by-trip basis, as required by
                                                when selective trawl gear is required.                  (§ 648.85(b)(6)(iv)(J)(2)(i)) require that            regulations, without a significant
                                                Approving this selective trawl gear                     new selective gear must either:                       reduction in squid and whiting catch.
                                                would provide the fishing industry with                 Demonstrate a statistically significant               These studies also demonstrated that
                                                more flexibility because there are                      reduction in catch of at least 50 percent,            the large-mesh belly panel reduced
khammond on DSK30JT082PROD with PROPOSAL




                                                limited selective trawl gears currently                 by weight, on a trip-by-trip basis, of                catch, by more than 50 percent per trip,
                                                approved for use. We also propose to                    each regulated species stock of concern,              of stocks that are overfished or subject
                                                disapprove the use of this gear in the                  or, catch of stocks of concern must be                to overfishing.
                                                southern windowpane accountability                      less than 5 percent of the total catch of                Cornell University conducted an
                                                measure areas.                                          regulated groundfish (by weight, on a                 additional study in 2015 to investigate
                                                DATES: Written comments must be                         trip-by-trip basis). The Council                      using a large-mesh belly panel in a trawl
                                                received on or before December 17,                      submitted two requests to add the large-              net typical of those used in the scup
                                                2018.                                                   mesh belly panel to the list of approved              fishery in southern New England


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                                                57396               Federal Register / Vol. 83, No. 221 / Thursday, November 15, 2018 / Proposed Rules

                                                waters. The experiment demonstrated a                   in the standard net, and three regulated              reduction standard are highlighted in
                                                statistically significant reduction in                  stocks of concern were caught in                      gray. Catches, on average, of yellowtail
                                                southern windowpane flounder catch of                   significant numbers in the standard net.              and winter flounder were only reduced
                                                more than 50 percent, without a                         The percent reduction by trip, and the                by 48 percent when the large-mesh belly
                                                significant reduction in catch of legal-                mean percent reduction, for each                      panel was used.
                                                sized scup. Catch in the large-mesh                     species is presented in Table 1; trips
                                                belly panel gear was compared to catch                  that do not meet the 50 percent




                                                Proposed Action                                         opening in the belly of the net that is               proposed rule, if adopted, would not
                                                   Based on the results of the studies                  approximately 8 ft (2.4 m) deep from                  have a significant economic impact on
                                                described above (copies available from                  front to back. The large-mesh belly                   a substantial number of small entities.
                                                NMFS at the mailing address listed                      panel was attached approximately 1 ft                 The factual determination for this
                                                under ADDRESSES), we have                               (30.5 cm) behind the footrope and                     determination is as follows.
                                                preliminarily determined that the large-                extended widthwise across the entire                     The Council requested that we
                                                mesh belly panel meets the necessary                    belly of the net (from gore to gore).                 approve a new selective trawl gear (the
                                                gear performance standards for use in                   Because it is important that the large-               large-mesh belly panel) for use in
                                                the Georges Bank yellowtail AM area,                    mesh belly panel gear definition balance              several non-groundfish fisheries to
                                                and we are proposing to approve the use                 the conservation requirements and                     reduce groundfish bycatch. For some
                                                of this gear in that area. The large-mesh               adaptability of the gear modifications                stocks, non-groundfish fisheries have an
                                                belly panel would be added to the list                  across multiple fisheries, we are                     AM that requires the use of selective
                                                of three existing selective gears                       requesting specific comments on this                  trawl gear when the ACL has been
                                                currently authorized for use in the                     gear configuration.                                   exceeded. Most of the approved
                                                Georges Bank yellowtail AM area. We                                                                           selective trawls are not designed for use
                                                                                                        Classification
                                                have also preliminarily determined that                                                                       in these fisheries, and the large-mesh
                                                the large-mesh belly panel does not                       Pursuant to section 304(b)(1)(A) of the             belly panel would provide these
                                                meet the gear standard in the southern                  Magnuson-Stevens Act, the National                    fisheries a better alternative than what
                                                windowpane AM area, and we are                          Marine Fisheries Service (NMFS)                       is currently available. The requirement
                                                proposing to disapprove its use in that                 Assistant Administrator has made a                    to use selective trawl gear was adopted
                                                area.                                                   preliminary determination that this                   in 2013. This rule would provide
                                                   This action would define the large-                  proposed rule is consistent with                      vessels an alternative selective gear for
                                                mesh belly panel in the regulations in                  Framework 51, other provisions of the                 meeting that requirement, which would
                                                § 648.80. The proposed gear                             Magnuson-Stevens Act, and other                       provide additional fishing
                                                specifications included in this rule are                applicable law. In making the final                   opportunities, increase operational
                                                based on the experimental gear used in                  determination, we will consider the                   flexibility, and improve economic
                                                the Cornell studies. The experimental                   data, views, and comments received                    efficiency. This action is necessary to
                                                selective gear was a 4-seam 3-bridal                    during the public comment period.                     allow the fisheries to more effectively
                                                otter trawl, modified to include a large-                 This proposed rule has been                         harvest its optimum yield, while
                                                mesh panel to replace the first bottom                  determined to be not significant for                  continuing to reduce bycatch of
                                                belly that allows escapement of flatfish.               purposes of Executive Order (E.O.)                    windowpane and yellowtail flounder.
                                                The large-mesh panel was made from 5                    12866.                                                This action seeks to fulfill the purpose
                                                mm (3⁄16 in) poly webbing and the mesh                    This proposed rule does not contain                 and need while meeting the overarching
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                                                size was approximately 32 in (81.3 cm)                  policies with Federalism or takings                   goals and objectives of the Northeast
                                                knot-center to knot-center diamond                      implications as those terms are defined               Multispecies FMP.
                                                mesh. The panel was two meshes deep                     in E.O. 13132 and E.O. 12630,                            For purposes of the Regulatory
                                                and was sewn into the standard mesh of                  respectively.                                         Flexibility Act, NMFS established a
                                                the first bottom belly using a ‘‘saw-                     The Chief Counsel for Regulation of                 small business size standard for
                                                toothing’’ technique. This resulted in an               the Department of Commerce certified                  businesses, including their affiliates,
                                                effective area for fish escapement of                   to the Chief Counsel for Advocacy of the              whose primary industry is commercial
                                                                                                                                                                                                          EP15NO18.001</GPH>




                                                three full 32-in (81.3-cm) meshes, or an                Small Business Administration that this               fishing (see 50 CFR 200.2). A business


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                                                                    Federal Register / Vol. 83, No. 221 / Thursday, November 15, 2018 / Proposed Rules                                                57397

                                                primarily engaged in commercial fishing                 on small entities. The effects on the                 PART 648—FISHERIES OF THE
                                                (NAICS code 11411) is classified as a                   regulated small entities identified in                NORTHEASTERN UNITED STATES
                                                small business if it is independently                   this analysis are expected to be positive
                                                owned and operated, is not dominant in                  relative to the no action alternative, in             ■ 1. The authority citation for part 648
                                                its field of operation (including its                   which this new selective trawl gear                   continues to read as follows:
                                                affiliates), and has combined annual                    would not be added to the list of                         Authority: 16 U.S.C. 1801 et seq.
                                                receipts not in excess of $11 million for               approved selective gears. Under the                   ■ 2. In § 648.84, add paragraph (f) to
                                                all its affiliated operations worldwide.                proposed action, small entities would                 read as follows:
                                                The determination of whether the entity                 not be placed at a competitive
                                                is large or small is based on the average               disadvantage relative to large entities,              § 648.84 Gear-marking requirements and
                                                annual revenue for the most recent 3                    and the regulations would not reduce                  gear restrictions.
                                                years for which data are available (in                  the profit for any small entities. As a               *      *     *     *     *
                                                this case, from 2014 through 2016).                     result, an initial regulatory flexibility                (f) Large-mesh belly panel trawl. A
                                                   The small-mesh exempted fishery                      analysis is not required and none has                 large-mesh belly panel trawl is defined
                                                allows vessels to harvest species in                    been prepared.                                        as a four-seam bottom trawl net (i.e., a
                                                designated areas using mesh sizes                         This proposed rule contains a                       net with a top and bottom panel and
                                                smaller than the minimum mesh size                      collection-of-information requirement                 two side panels) modified to include a
                                                required by Regulated Mesh Area                         subject to review and approval by OMB                 large-mesh panel to replace the first
                                                regulations. To participate in the small-               under the Paperwork Reduction Act                     bottom belly, as further specified in
                                                mesh multispecies exempted fishery,                     (PRA). This requirement will be                       paragraphs (f)(1) and (2) of this section.
                                                vessels must possess either a limited                   submitted to OMB for approval. Public                    (1) Mesh size. The minimum mesh
                                                access multispecies permit (categories                  reporting burden for the selection of the             size applied throughout the body of the
                                                A, C, D, E, or F) or an open access                     gear code is estimated to average one                 trawl, as well as the codend mesh size,
                                                multispecies permit (category K).                       minute per response, including the time               must be consistent with mesh size
                                                Limited access multispecies permit                      for reviewing instructions, searching                 requirements specified in § 648.80. If a
                                                holders can target small-mesh                           existing data sources, gathering and                  vessel is fishing in an exemption area or
                                                multispecies with different possession                  maintaining the data needed, and                      an exempted fishery, it must comply
                                                limit requirements depending on fishing                 completing and reviewing the collection               with all of the requirements and
                                                region and mesh size used. Open access,                 of information.                                       conditions of the exemption.
                                                Category K permit holders may fish for                    Public comment is sought regarding:                    (2) Large-mesh belly panel. The large-
                                                small-mesh multispecies when                            Whether this proposed collection of                   mesh belly panel must have a minimum
                                                participating in an exempted fishing                    information is necessary for the proper               mesh size of 30 in (76.2 cm) measured
                                                program. Therefore, entities holding one                performance of the functions of the                   using the standard defined in
                                                or more multispecies permits (permit                    agency, including whether the                         § 648.80(f)(2). The width of the panel
                                                type A, C–F, K) are the entities that have              information shall have practical utility;             must extend the full width of the bottom
                                                the potential to be directly impacted by                the accuracy of the burden estimate;                  panel (i.e., from one bottom gore to the
                                                this action. According to the                           ways to enhance the quality, utility, and             other bottom gore). The depth must be
                                                commercial database, there were 853                     clarity of the information to be                      at least 90 in (228.6 cm) and at least 3
                                                distinct ownership entities, based on                   collected; and ways to minimize the                   meshes deep (2 meshes deep with a 15-
                                                entities’ participation during the 2014–                burden of the collection of information,              in (38.1-cm) sewing seam on top and
                                                2016 time-period, that could potentially                including through the use of automated                bottom). No more than six meshes of the
                                                target small-mesh multispecies. This                    collection techniques or other forms of               small-mesh net may be left behind the
                                                includes entities that could not be                     information technology. Send comments                 sweep, before the large-mesh panel is
                                                classified into a business type because                 on these or any other aspects of the                  sewn in.
                                                they did not earn revenue from landing                  collection of information to NMFS at the              ■ 3. In § 648.90, revise paragraph
                                                and selling fish in 2014–2016 and thus                  ADDRESSES above, and by email to                      (a)(5)(v), to read as follows:
                                                are considered to be small. Of the 853                  OIRA_Submission@omb.eop.gov or fax
                                                total firms, 844 are categorized as small               to (202) 395–7285.                                    § 648.90 NE multispecies assessment,
                                                business entities and 9 are categorized                                                                       framework procedures, and specifications,
                                                                                                          Notwithstanding any other provision
                                                as large businesses. While 853                                                                                and flexible area action system.
                                                                                                        of the law, no person is required to
                                                commercial entities have the potential                  respond to, and no person shall be                       (a) * * *
                                                to be impacted by the proposed action,                                                                           (5) * * *
                                                                                                        subject to penalty for failure to comply                 (v) AM if the small-mesh fisheries GB
                                                not all of these entities actively land                 with, a collection of information subject
                                                small-mesh multispecies for commercial                                                                        yellowtail flounder sub-ACL is
                                                                                                        to the requirements of the PRA, unless                exceeded. If NMFS determines that the
                                                sale. There are 406 distinct entities that              that collection of information displays a
                                                commercially sold small-mesh                                                                                  sub-ACL of GB yellowtail flounder
                                                                                                        currently valid OMB control number.                   allocated to the small-mesh fisheries,
                                                multispecies from 2014–2016 and may
                                                be directly affected by the proposed                    List of Subjects in 50 CFR Part 648                   pursuant to paragraph (a)(4)(iii)(G) of
                                                action. Of those, 404 are categorized as                  Fisheries, Fishing, Recordkeeping and               this section, is exceeded, NMFS shall
                                                small businesses.                                       reporting requirements.                               implement the AM specified in this
                                                   The measures proposed are expected                                                                         paragraph consistent with the
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                                                to have a positive economic effect on                     Dated: November 9, 2018.                            Administrative Procedures Act. The AM
                                                small entities. It could increase catch of              Samuel D. Rauch III,                                  requires that small-mesh fisheries
                                                target stocks, in a scenario when fishing               Deputy Assistant Administrator for                    vessels, as defined in paragraph
                                                would otherwise be prohibited.                          Regulatory Programs, National Marine                  (a)(4)(iii)(G)(1) of this section, use one of
                                                Providing increased fishing                             Fisheries Service.                                    the following approved selective trawl
                                                opportunities should increase landings                    For the reasons stated in the                       gear in the GB yellowtail flounder stock
                                                and profits. This action is not expected                preamble, 50 CFR part 648 is proposed                 area, as defined at § 648.85(b)(6)(v)(H):
                                                to have a significant or substantial effect             to be amended as follows:                             A haddock separator trawl, as specified


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                                                57398               Federal Register / Vol. 83, No. 221 / Thursday, November 15, 2018 / Proposed Rules

                                                in § 648.85(a)(3)(iii)(A); a Ruhle trawl,               is sufficient time to do so in a manner               at the start of Year 3. If updated catch
                                                as specified in § 648.85(b)(6)(iv)(J)(3); a             consistent with the Administrative                    information becomes available
                                                rope separator trawl, as specified in                   Procedures Act. Otherwise, the AM                     subsequent to the implementation of an
                                                § 648.84(e); a large-mesh belly panel                   shall be implemented in the second                    AM that indicates that an overage of the
                                                trawl, as specified in § 648.84(f); or any              fishing year after the fishing year in                small-mesh fisheries sub-ACL did not
                                                other gear approved consistent with the                 which the overage occurred. For                       occur, NMFS shall rescind the AM,
                                                process defined in § 648.85(b)(6). If                   example, if NMFS determined after the                 consistent with the Administrative
                                                reliable information is available, the AM               start of Year 2 that the small-mesh                   Procedure Act.
                                                shall be implemented in the fishing year                fisheries sub-ACL for GB yellowtail                   *     *      *    *      *
                                                immediately following the year in                       flounder was exceeded in Year 1, the                  [FR Doc. 2018–24975 Filed 11–14–18; 8:45 am]
                                                which the overage occurred only if there                applicable AM would be implemented                    BILLING CODE 3510–22–P
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Document Created: 2018-11-15 04:01:16
Document Modified: 2018-11-15 04:01:16
CategoryRegulatory Information
CollectionFederal Register
sudoc ClassAE 2.7:
GS 4.107:
AE 2.106:
PublisherOffice of the Federal Register, National Archives and Records Administration
SectionProposed Rules
ActionProposed rule; request for comments.
DatesWritten comments must be received on or before December 17, 2018.
ContactEmily Keiley, Fishery Management Specialist, phone: (978) 281-9116; email: [email protected]
FR Citation83 FR 57395 
RIN Number0648-BF57
CFR AssociatedFisheries; Fishing and Recordkeeping and Reporting Requirements

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