[Federal Register Volume 81, Number 157 (Monday, August 15, 2016)]
[Rules and Regulations]
[Pages 53958-53960]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2016-19342]
[[Page 53958]]
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DEPARTMENT OF COMMERCE
National Oceanic and Atmospheric Administration
50 CFR Part 648
[Docket No. 160301165-6692-02]
RIN 0648-BF88
Fisheries of the Northeastern United States; Spiny Dogfish
Fishery; 2016-2018 Specifications
AGENCY: National Marine Fisheries Service (NMFS), National Oceanic and
Atmospheric Administration (NOAA), Commerce.
ACTION: Final rule.
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SUMMARY: This final rule implements catch limits, commercial quotas,
and possession limits for the spiny dogfish fishery for fishing years
2016-2018. This action reduces catch limits for fishing years 2016-
2018, but increases the spiny dogfish trip limit. This action is
necessary to ensure that overfishing does not occur and is intended to
help the spiny dogfish fishery better achieve optimum yield.
DATES: Effective on August 15, 2016.
ADDRESSES: Copies of the specifications, including the Environmental
Assessment and Regulatory Impact Review (EA/RIR), and other supporting
documents for the action are available from Dr. Christopher M. Moore,
Executive Director, Mid-Atlantic Fishery Management Council, Suite 201,
800 N. State Street, Dover, DE 19901. The framework is also accessible
via the Internet at: http://www.greateratlantic.fisheries.noaa.gov.
FOR FURTHER INFORMATION CONTACT: William Whitmore, Fishery Policy
Analyst, (978) 281-9182.
SUPPLEMENTARY INFORMATION:
Background
The Atlantic spiny dogfish (Squalus acanthias) fishery is jointly
managed by the New England and Mid-Atlantic Fishery Management Councils
through the Spiny Dogfish Fishery Management Plan (FMP). The Atlantic
States Marine Fisheries Commission also manages the spiny dogfish
fishery in state waters from Maine to North Carolina through an
interstate plan. Additional information on the FMP is available at
http://www.mafmc.org/fisheries/fmp/dogfish. Information on the
interstate FMP can be reviewed at http://www.asmfc.org/species/spiny-dogfish.
On June 22, 2016, we proposed new spiny dogfish specifications (81
FR 40650), which include catch limits, commercial quotas, and
possession limits for fishing years 2016-2018. Additional information
on how specifications are set can be reviewed through the FMP links
provided above or the proposed rule for this action.
Fishing Year 2016-2018 Specifications
We are implementing the acceptable biological catch (ABC) and
annual catch limits (ACLs) outlined in our proposed rule (see Table 1
below).
Table 1--2016-2018 ACL and Commercial Quota Specifications for the Spiny Dogfish Fishery
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Commercial Commercial Change from
Fishing year ACL (lb) ACL (mt) quota (lb) quota (mt) 2015 (percent)
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2016............................ 51,923,272 23,552 40,360,761 18,307 -20
2017............................ 50,662,228 22,980 39,099,717 17,735 -23
2018............................ 49,758,333 22,570 38,195,822 17,325 -25
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Although the stock remains healthy and is not overfished or subject
to overfishing, the survey index of spawning stock biomass has recently
decreased. This decline was not unexpected and is primarily due to (1)
high variance in the survey, and (2) poor spiny dogfish pup production
(i.e., recruitment to the dogfish stock). These specifications are
consistent with the best scientific information available and the
Council's and their Scientific and Statistical Committee
recommendations. Additional information that explains the status of the
spiny dogfish stock and describes the 2016-2018 catch limits is
available in the proposed rule and is not repeated here.
Trip Limit Increase
We are approving a trip limit increase from 5,000 lb (2,268 kg) to
6,000 lb (2,722 kg). Because of the proposed harvest reductions (see
Table 1), the Councils initially recommended maintaining the current
spiny dogfish trip limit of 5,000 lb (2,268 kg). However, after
recognizing that the reduced 2016-2018 quotas are still significantly
higher than landings in recent years, both Councils and the Commission
requested that we increase the trip limit to 6,000 lb (2,722 kg). We
specifically solicited public comment on this request in the proposed
rule (81 FR 40650; June 22, 2016). We received several comments in
support of the trip limit increase. There were two comments opposed to
a trip limit increase that provided no specific detail on why the
increase would be harmful. Considering this, and understanding that the
stock remains healthy, underharvested, and has in place rigid
management controls to prevent exceeding the commercial quota, we have
elected to increase the trip limit.
Comments and Responses
We received five public comments on the proposed rule during the
15-day comment period.
Comment 1: Two commenters suggested that the trip limit should be
reduced to protect the stock and prevent the fishery from becoming
overfished.
Response 1: As explained in the proposed rule, the ACLs are being
reduced in response to a recent stock assessment update that shows
anticipated declines in stock size following a few years of lower pup
production. Despite the reduced ACLs, the fishery is not considered
overfished or subject to overfishing. The FMP provides authority to
close the fishery if the commercial quota will be reached as well as a
pound-for-pound overage repayment system should catch in any one year
exceed the established quota. Female spawning stock biomass is 6
percent above the target maximum sustainable yield biomass proxy of 351
million lb (159,288 mt). Fishing mortality remains low and the fishery
is underutilized--it is not at risk of overfishing or becoming
overfished. As a result, it is not necessary to reduce the trip limit
to keep the fishery within its catch limits. Should the increased trip
limits result in higher harvests than recent years, appropriate
management tools are available to prevent overharvesting. In addition,
decreasing the trip limit would make it less likely that the fishery
could achieve optimum yield.
Comment 2: Both Councils and Massachusetts Division of Marine
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Fisheries requested that we increase the spiny dogfish trip limit.
Response 2: We agree. This healthy stock remains greatly
underutilized. Increasing the trip limit provides an opportunity for
the fishery to better harvest optimum yield and provide increased
revenue. For these reasons, in addition to those detailed above, we are
increasing the trip limit.
Classification
The Administrator, Greater Atlantic Region, NMFS, determined that
the 2016-2018 specifications to the FMP are necessary for the
conservation and management of the spiny dogfish fishery and that it is
consistent with the Magnuson-Stevens Fishery Conservation and
Management Act and other applicable laws.
There is good cause under 5 U.S.C. 553(d)(3) to waive the 30-day
delay in effective date. Maintaining the 30-day delay in effective date
is contrary to the public interest for several reasons. First,
increasing the dogfish possession limit from 5,000 lb (2,268 kg) to
6,000 lb (2722 kg) will enhance fishing opportunities and the change is
anticipated to increase landings and associated fishing revenue for
members of the fishing industry. Therefore, this final rule relieves an
economic hardship while allowing the fishery to more effectively
achieve optimum yield. Delaying this action for 30 days would result in
foregone economic benefits that could not be recovered. Second, the
Mid-Atlantic Fishery Management Council did not submit these
Specifications and the accompanying environmental assessment until
March 11, 2016, making it virtually impossible to solicit public
comment through a proposed rule and implement a final rule prior to the
start of the fishing year, which began on May 1, 2016. Therefore, this
delay has already resulted in missed fishing opportunities and revenue
for fishermen and implementation should not be further delayed. Third,
keeping an unnecessarily restrictive possession limit would result in
fishermen wastefully discarding fish that could have been retained with
the higher possession limit approved under this rule. Maintaining the
lower catch limit and requiring unnecessary discarding contradicts the
best available science and would prevent the fishery from achieving
optimum yield. Lastly, because this rule imposes no further
restrictions on the fishery that would alter existing fishing practices
or require affected entities to acquire additional equipment, there is
no need to delay implementation of this action to provide affected
entities additional time to prepare for or comply with the
implementation of this action. For these reasons, a 30-day delay in
effective date is both contrary to the public interest and unnecessary.
This final rule has been determined to be not significant for the
purpose of E.O. 12866.
A final regulatory flexibility analysis (FRFA) was prepared. The
FRFA incorporates the initial regulatory flexibility analysis (IRFA), a
summary of the significant issues raised by the public comments in
response to the IRFA, and NMFS responses to those comments. A copy of
this analysis is available (see ADDRESSES).
A Summary of the Significant Issues Raised by the Public in Response to
the IRFA, a Summary of the Agency's Assessment of Such Issues, and a
Statement of Any Changes Made in the Final Rule as a Result of Such
Comments
A description of the final rule, why it is being considered, and
the legal basis for this rule were contained in the preamble of the
proposed rule for this action (81 FR 40650; June 22, 2016) and are not
repeated here. The public did not provide any comments on the IRFA;
therefore, there are no changes made in this final rule with regards to
the economic analyses and impacts.
Description and Estimate of Number of Small Entities to Which the Rule
Would Apply
This final rule would affect fishing vessels, including commercial
fishing entities. In 2014, there were 2,473 vessels that held an open
access spiny dogfish permit. Cross-referencing those permits with
vessel ownership data revealed that 1,830 business entities owned those
vessels.
On December 29, 2015, NMFS issued a final rule establishing a small
business size standard of $11 million in annual gross receipts for all
businesses primarily engaged in the commercial fishing industry (NAICS
11411) for Regulatory Flexibility Act compliance purposes (80 FR
81194). The $11 million standard became effective on July 1, 2016, and
is to be used in place of the U.S. Small Business Administration's
(SBA) previous standards of $20.5 million, $5.5 million, and $7.5
million for the finfish (NAICS 114111), shellfish (NAICS 114112), and
other marine fishing (NAICS 114119) sectors, respectively, of the U.S.
commercial fishing industry.
An IRFA was developed for this regulatory action prior to July 1,
2016, using SBA's previous size standards. Under the SBA's size
standards, 18 of the 1,830 (about 1 percent) spiny dogfish fishing
entities were determined to be large. Of the 1,812 entities deemed to
be small business entities by the SBA criteria, 570 were finfish, 580
were shellfish, and 244 were for-hire small entities. Further, 418
small entities had no revenue in 2014.
NMFS has qualitatively reviewed the analyses prepared for this
final rule using the new size standard. The new standard could result
in a few more commercial shellfish businesses being considered small
(due to the increase in small business size standards). In addition,
the new standard could result in fewer commercial finfish businesses
being considered small (due to the decrease in size standards). On
average, for small entities, spiny dogfish is responsible for a small
fraction of total landings, and active participants derive a small
share of gross receipts from the spiny dogfish fishery. As a result, it
is unlikely that these size-standard changes would have any impact on
the previously conducted analyses.
Description of the Projected Reporting, Record-Keeping, and Other
Compliance Requirements of This Final Rule
This final rule does not introduce any new reporting,
recordkeeping, or other compliance requirements.
Description of the Steps the Agency Has Taken To Minimize the
Significant Economic Impact on Small Entities Consistent With the
Stated Objectives of Applicable Statutes
These specifications include management measure alternatives for
(1) the spiny dogfish ACLs and associated commercial quotas, and (2)
spiny dogfish trip limits.
We do not anticipate any significant economic impacts on small
entities to result from this action. While there is an overall
reduction in the ACLs, analyses for this action indicate that spiny
dogfish landings have been substantially less than the specifications
we are approving for fishing years 2016-2018. It is unlikely that
potential revenue losses would be directly equal to with the ACL
reductions. By contrast, maintaining the status quo ACL is inconsistent
with the stated objectives because it does not represent the best
available science or the goals and objectives of the FMP.
Regarding spiny dogfish trip limits, this final rule increases trip
limits from 5,000 lb (2,268 kg) to 6,000 lb (2,722 kg). In general,
higher trip limits could result in greater immediate revenue per trip.
There is some risk that increasing trip limits could increase the
potential
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for an abbreviated season if the quota or processing capacity is
reached. Also, it is possible that a large trip limit increase could
lower ex-vessel prices and/or make prices more unstable. Given the low
overall demand for spiny dogfish, trip limits may not have a large
effect on overall revenue across the fishery. Therefore, increasing the
trip limit may help minimize economic impacts, but only if prices
remain relatively stable and demand increases.
Section 212 of the Small Business Regulatory Enforcement Fairness
Act of 1996 states that, for each rule or group of related rules for
which an agency is required to prepare a FRFA, the agency shall publish
one or more guides to assist small entities in complying with the rule,
and shall designate such publications as ``small entity compliance
guides.'' The agency shall explain the actions a small entity is
required to take to comply with a rule or group of rules. As part of
this rulemaking process, a letter to permit holders that also serves as
small entity compliance guide was prepared. Copies of this final rule
are available from the Greater Atlantic Regional Fisheries Office
(GARFO), and the compliance guide, i.e., permit holder letter, will be
sent to all holders of permits for the skate fishery. The guide and
this final rule will be posted or publically available on the GARFO Web
site (see ADDRESSES).
List of Subjects in 50 CFR Part 648
Fisheries, Fishing, Reporting and recordkeeping requirements.
Dated: August 9, 2016.
Paul Doremus,
Deputy Assistant Administrator for Operations, National Marine
Fisheries Service.
For the reasons set out in the preamble, 50 CFR part 648 is amended
as follows:
PART 648--FISHERIES OF THE NORTHEASTERN UNITED STATES
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. 648.235, revise paragraph (a)(1) to read as follows:
Sec. 648.235 Spiny dogfish possession and landing restrictions.
(a) * * *
(1) Possess up to 6,000 lb (2,722 kg) of spiny dogfish per trip;
and
* * * * *
[FR Doc. 2016-19342 Filed 8-12-16; 8:45 am]
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