Amendment No. 2 to the Fishery Management Plan for the Stone Crab Fishery of the Gulf of Mexico and the South Atlantic

AMENOMENT NUMBER 2 TO THE FISHERY MANAGEMENT PLAN FOR THE STONE CRAB F l SHERY OF THE GULF OF M I 3 I CO AND AMENEMENT NLMBER 3 TO THE FISHERY MANAGEMENT PLAN ' ~ - - . FOR THE SHRIMP F l SHERY OF THE GULF OF MEX I CO MARCH, 1984 GULF OF M M I CO F I SHERY M W E M E N T COUNC I L L INCOLN CENTER, SUITE 881 5401 WEST KENNEDY BOULEVARD TAMPA, FLORIDA 3 3 6 0 9 ( 8 1 3 ) 228-281 5 Amendment t o t h e F i s h e r y Management P l a n s (FMPs) f o r t h e S t o n e C r a b and S h r i m p F i s h e r i e s o f t h e G u l f o f Mex i co . a. S t a t e m e n t o f P rob lem: The S t o n e C r a b F i s h e r y Management P l a n (FMP), as amended, p r o v i d e s f o r management and r e g u l a t i o n o f t h e s t o n e c r a b f i s h e r y o f f t h e w e s t c o a s t o f F l o r i d a i n t h e f i s h e r y c o n s e r v a t i o n zone (FCZ). One o f t h e p r i n c i p a l management measu res o f t h e F W e s t a b l i s h e s a Ill i ne o f s e p a r a t i o n I 1 o f f s o u t h w e s t F l o r i d a ( f r o m a p p r o x i m a t e l y 26ON. l a t i t u d e s o u t h w a r d l y t o t h e K e y s ) s h o r e w a r d o f w h i c h t r a w l f i s h i n g i s p r o h i b i t e d f r o m J a n u a r y 1 s t t h r o u g h May 2 0 t h e a c h y e a r [ 44 FR 535231. T h i s a r e a was e s t a b l i s h e d t o r e s o l v e a m a j o r armed c o n f l i c t b e t w e e n s t o n e c r a b f i s h e r m e n a n d f i s h e r m e n u s i n g t r a w l s . The measure w h i c h was d e v e l o p e d t h r o u g h compro m i se agreement by r e p r e s e n t a t i v e s o f sh r i m p i n g and c r a b b i n g i n d u s t r i e s h a s b e e n e x t r e m e l y e f f e c t i v e i n r e s o l v i n g t h i s c o n f l i c t . The m e a s u r e was a l s o i n c o r p o r a t e d i n t o t h e S h r i m p FMP s i n c e i t p r o v i d e d f o r r e g u l a t i o n o f t h e s h r i m p f i s h e r y as we1 l ;as t h e s t o n e c r a b f i s h e r y [*6 FR-234-991. - -- 74- &=. A s i m i l a r c o n f l i c t d e v e l o p e d o f f C i t r u s C o u n t y on t h e c e n t r a l w e s t c o a s t o f F l o r i d a d u r i n g t h e l a t e 1970s. The p r o b l e m was r e l a t e d t o c o m p e t i t i o n f o r f i s h i n g a r e a be tween s t o n e c r a b f i s h e r m e n who u t i l i z e f i x e d g e a r ( t r a p s , p o t s , e t c . ) and s h r i m p f i s h e r m e n who u t i l i z e m o b i l e g e a r ( r i g i d frame r o l l e r t r a w l s ) . The p r o b l e m w a s compounded s i n c e c r a b b e r s f i s h d u r i n g d a y l i g h t and s h r i m p e r s f i s h o n l y a t n i g h t . By 1980 t h e f i s h e r m e n i n v o l v e d i n t h e t w o f i s h e r i e s j u d g e d t h e l o s s o f t r a p s and l o s s o f t r a w l i n g t ime a n d t h e r e s u l t a n t l o s s o f p r o d u c t i v i t y t o be so s i g n i f i c a n t t h a t t h e y e s t a b l i s h e d e x c l u s i v e f i s h i n g a r e a s f o r each f i s h e r y o f f C i t r u s C o u n t y f o r t h e d u r a t i o n o f t h e s t o n e c r a b s e a s o n ( O c t o b e r 5 t h t h r o u g h May 2 0 t h ) . These f i s h i n g a r e a s we re e s t a b l i s h e d , buoyed, and c o m p l i e d w i t h by l l gen t l eman l s a g r e e m e n t " and i n v o l v e d no g o v e r r r n e n t a l a c t i o n o r s a n c t i o n . I n 1982 , due t o t h e f a i l u r e o f v o l u n t a r y o b s e r v a n c e o f t hese e x c l u s i v e f i s h i n g a r e a s , t h e S t a t e o f F l o r i d a ( S t a t e ) e s t a b l i s h e d by l a w a n a d v i s o r y comni t t e e f o r C i t r u s C o u n t y cons i s t i ng o f a n equa l number o f r e p r e s e n t a t i v e s f r o m each o f t h e two i n d u s t r i e s [ C h a p t e r 81-199, 370.1581. T h e a d v i s o r y comni t t e e was empowered w i t h a u t h o r i t y t o recomnend e x c l u s i v e f i s h i n g a r e a s f o r c r a b b i n g a n d s h r i m p i ng i n w a t e r s o f f C i t r u s C o u n t y under s t a t e j u r i s d i c t i o n ( o u t t o n i n e n a u t i c a l m i l e s f ran s h o r e ) . The c o m n i t t e e recommended, and t h e - ' s t a t e p r o m u l g a t e d as r u l e [16N-2.141, e x c l u s i v e f i s h i n g a reas d u r i n g 1982. Due t o t h e c o n c u r r e n t i n c r e a s e i n f i s h i n g p a r t i c i p a n t s , gear , a n d e f f o r t o v e r t h i s p e r i o d , t h e c o n f l i c t s i t u a t i o n e x t e n d e d o u t i n t o t h e FCZ and i n t o w a t e r s . o f f a d j o i n i n g c o u n t i e s ( p r i n c i p a l l y He rnando a n d Pasco c o u n t i e s ) . F r o m . 1 9 7 9 t h r o u g h 1982, s t o n e c r a b l a n d i n g s i n c r e a s e d b y 225 p e r c e n t and s h r i m p l a n d i n g s ( b a i t and c o m n e r c i a l comb ined ) by 200 p e r c e n t f o r t h e Pasco , He rnando and C i t r u s c o u n t i e s a r e a , i l l u s t r a t i n g t h e i n c r e a s i n g f i s h i n g p r e s s u r e ( T a b l e 1 ) . D u r i n g 1982, t h e C i t r u s C o u n t y A d v i s o r y Comni t t e e p e t i t i o n e d t h e G u l f o f M e x i c o F i s h e r y Management Counc i l ( h e r e a f t e r r e f e r r e d t o as l lCounc i lM) t o T a b l e 1. Land ings o f Shr imp and S t o n e C r a b i n Pounds i n t h e C o n f l i c t A rea and S u r r o u n d i ng c o u n t i e s l P i ne l l as2 ~ a s c o / ~ i t r u s 3 L e v y D i x i e I T a y l o r B a i t Sh r imp 101,670 177,030 15 ,520 29,297 Shr imp 1,585,740 178,267 - S t o n e C r a b 9,432 342,642 187,394 70,331 B a i t Sh r imp 42,031 242,290 4,825 15,882 Shr imp 1,871 ,758 256,827 - S t o n e C r a b 26,639 335,079 87,246 101,250 B a i t Sh r imp 45,531 275,320 8,075 7,431 Shr imp 2,623,353 291,379 2 0 0 ~ 3 564 S t o n e C r a b 73,784 481 ,865 124,828 176,560 B a i t Sh r imp 103,317 284,764 2,600 20,034 \ Shr imp 1,426,682 424,869 364,2364 S tone C r a b 28,942 769,500 179,576 186,842 B a i t Sh r imp N A 245,580 Shr imp N A 1,031,455 5 6 9 , 0 4 3 ~ S tone C r a b N A 1,000,485 106,700 I n c l u d e s l a n d i n g s o n l y t h r o u g h t h e f i s h houses rnoni t o r e d by M F S . An e s t i m a t e d 2 0 p e r c e n t o f s h r i m p l a n d i n g s and 25 p e r c e n t o f s t o n e c r a b l a n d i n g s bypass t h e s e f i s h houses. A l l w e i g h t s a r e l i v e w e i g h t , i.e., s h r i m p heads on, w h o l e c r a b w e i g h t . B a i t s h r i m p and s t o n e c r a b l a n d i n g s a r e f r o m l o c a l c o a s t a l w a t e r s , whereas s h r i m p l a n d i n g s a r e p r i m a r i l y f r o m d i s t a n t w a t e r v e s s e l s o p e r a t i n g t h r o u g h o u t t h e G u l f o f Mex ico . C o n f l i c t area. N e g l i g i b l e amounts a r e l anded i n He rnando C o u n t y s i n c e i t has no n a v i g a t i o n channe ls . L a n d i n g s combined f o r L e v y , D i x i e and T a y l o r C o u n t i e s t o i n s u r e c o n f i d e n - I t i a l i t y . P r e l i m i n a r y d a t a , s u b j e c t t o r e v i s i o n . amend t h e S t o n e C r a b and Shr imp F W s t o i n c l u d e measu res t o r e s o l v e t h e c o n f l i c t i n t h e FCZ o f f C i t r u s Coun t y . The C o u n c i l , a f t e r c o n f e r r i n g w i t h t h e Comni t t e e , h e l d a f a c t - f i n d i n g pub1 i c h e a r i n g i n C r y s t a l R i v e r , F l o r i d a , o n Sep tember 29, 1982. F o l l a w i n g t h i s h e a r i n g t h e C o u n c i l p r e p a r e d a d r a f t amendment t o t h e Sh r imp and S t o n e C r a b FMPs and h e l d p u b l i c h e a r i n g s o n t h e p r o p o s e d d r a f t amendment o n M a r c h 2 9 and 3 0 , 1983. As a r e s u l t o f t e s t i m o n y p r e s e n t e d a t t h e p u b l i c h e a r i n g s , t h e C o u n c i l c o n c l u d e d t h a t t h e p r o p o s e d a c t i o n o f i t s d r a f t amendment was i n a d e q u a t e t o r e s o l v e t h e c o n f l i c t . I t was a l s o e v i d e n t f r o m t e s t imony t h a t t h e r e was l i t t l e agreement o n how t h e a r e a s h o u l d be d i v i d e d i n t o f i s h i n g a reas , a l t h o u g h t h e g r e a t m a j o r i t y o f p e r s o n s t e s t i f y i n g f e l t t h a t t h e c r e a t i o n o f e x c l u s i v e f i s h i n g a r e a s was t h e o n l y way t o r e s o l v e t h e c o n f l i c t . F o l l o w i n g t h e h e a r i n g s t h e Counc i l e s t a b l i s h e d an Ad Hoc Shr i m p / S t o n e C r a b A d v i s o r y P a n e l (AP) c o n s i s t i n g o f equa l r e p r e s e n t a t i o n f r o m s h r i m p and s t o n e c r a b i n d u s t r i e s o f Pasco, He rnando and C i t r u s C o u n t i e s . T h e members o f t h e AP w e r e s e l e c t e d f r o m p e r s o n s r e c m e n d e d b y t h e f i s h e r m e n o f each o f t he c o u n t i e s . The AP was. e ; s t ab I i s h e d t o a s s i s t t h e C o a n c i I ; i n - - a d d r e s s i n g a -- - : l o n g - t e r m s o l u t i o n t o t h e c o n f l i c t . P r i o r t o t h e f i r s t m e e t i n g o f t h e AP t h e c o n f l i c t s i t u a t i o n i n t e n s i f i e d and, due t o e v i d e n c e s u g g e s t i n g impend i ng v i o l e n c e , M F S imp1 emented a n emergency r e g u l a t i o n t o c r e a t e e x c l u s i v e f i s h i n g a r e a s f o r s t o n e c r a b a n d sh r imp f i s h i n g i n t h e FCZ o f f Pasco, H e r n a n d o and C i t r u s C o u n t i e s , e f f e c t i v e A p r i l 6 , 1983 , t h r o u g h May 20 , 1983 [ 4 8 FR 149031. D u r i n g May and J u n e o f 1983 , t h e C o u n c i l h e l d seven m e e t i n g s o f t h e AP t o g a t h e r i n f o r r n a t i o n o n t h e f i s h e r i e s and t o a t t e m p t t o r e a c h a l o n g - t e r m compromise s o l u t i o n t o t h e c o n f l i c t . A l t h o u g h a g r e a t d e a l o f p r o g r e s s was made, no compromise a c c e p t a b l e t o each g r o u p was r eached . D u r i n g t h i s p e r i o d t h e F l o r i d a l e g i s l a t u r e p a s s e d an a c t e s t a b l i s h i n g a P a s c o , He rnando , C i t r u s C o u n t i e s S h r i m p i n g and C r a b b i n g A d v i s o r y C o r n n i t t e e ( C o m n i t t e e ) who w e r e a s s i g n e d t h e t a s k o f z o n i n g s t a t e w a t e r s i n a manner t h a t w o u l d be m o s t e q u i t a b l e t o b o t h g r o u p s [ C h a p t e r 83-190, 370.1581. The Comni t t e e was com p o s e d o f two s h r i m p and two c r a b f i s h e r m e n f o r each o f t h e t h r e e c o u n t i e s a p p o i n t e d by t h e l e g i s l a t i v e d e l e g a t i ons f r o m t hose c o u n t i e s . The Counc i I t e r m i n a t e d t h e AP and p r e s e n t e d i t s f i n d i n g s t o t h e C o m n i t t e e f o r con s i d e r a t i o n a t i t s f i r s t o p e r a t i o n a l m e e t i n g . The Comni t t e e was asked t o c o n s i d e r e q u i t a b l e z o n i n g o f b o t h f e d e r a l a-nd s t a t e w a t e r s i n t h e c o n f l i c t a r e a f o r t h e coming s t o n e c r a b s e a s o n ( O c t o b e r 5 , 1 9 8 3 - May 2 0 , 1984) . The C o u n c i l a l s o p r e s e n t e d t o t h e C o m n i t t e e t h e c o n c e p t f o r a measu re t o a d d r e s s t h e c o n f l i c t i n f u t u r e seasons by u t i l i z i ng t h e z o n i n g r e c m e n d a t i o n s o f t h e C o r n i t t e e . Such z o n i n g r e c m e n d a t i o n s w o u l d be c o n s i d e r e d b y t he S t a t e [ F l o r i d a D e p a r t m e n t o f N a t u r a l R e s o u r c e s - (FDNR) and F l o r i d a M a r i n e F i s h e r i e s C o m m i s s i o n (FMFC)] f o r i m p l e m e n t a t i o n i n s t a t e w a t e r s and by t h e C o u n c i l and NMFS f o r i m p l e m e n t a t i o n i n a d j o i n i n g w a t e r s o f t h e FCZ. On A u g u s t 30, 1983 , t h e Comni t t e e m e t and e n d o r s e d t h e measu res p roposed i n t h i s amendment. The Comni t t e e f u r t h e r c o n c l u d e d t h a t t h e c o n f l i c t s i t o a t i o n was s e r i o u s and r e c o r n e n d e d t h a t s p e c i f i c e x c l u s i v e f i s h i n g a r e a s be e s t a b l i s h e d i n s t a t e w a t e r s and t h e FCZ o f f C i t r u s a n d He rnando C o u n t i e s f o r t h e comi ng s e a s o n by emergency r u l e . No f i s h i n g a r e a s were recomnended b y t h e Comni t t e e o f f Pasco C o u n t y f o r t h e c o m i n g season s i n c e c r a b and s h r i m p f i s h e r m e n w e r e m u t u a l l y a v o i d i n g c o n f r o n t a t i o n i n t h i s a rea , w h i c h i s sub j e c t t o l e s s f i s h i n g p r e s s u r e . On September 20 , 1983, t h e F l o r i d a G o v e r n o r and C a b i n e t p r o m u l g a t e d by s t a t e emergency r u l e t h e z o n i n g c o n f i g u r a t i o n recomnended b y t h e C o m n i t t e e f o r f i s h i n g zones i n s t a t e j u r i s d i c t i o n [16N-ER83-21. A t i t s Sep tember , 1 9 8 3 , m e e t i ng t h e C o u n c i l cons i d e r e d t h e Comni t t e e ' s r e c o m e n d e d z o n i ng con f i g u r a t i o n f o r t h e FCZ and recomnended t h a t t h e S e c r e t a r y o f Comnerce ( S e c r e t a r y ) imp lement i t b y emergency r e g u l a t i o n f o r 9 0 days, e f f e c t i v e O c t o b e r 5 , 1983. The S e c r e t a r y p r o m u l g a t e d t h e r e g u l a t i o n e s t a b l i s h i n g t h e f i s h i n g a r e a s i n t h e FCZ o n O c t o b e r 5, 1983 ( 4 8 FR 460571. b. D e s c r i p t i o n o f t h e F i s h e r i e s : The s h r i m p and s t o n e c r a b f i s h e r i e s i n t h e c o n f l i c t a r e a ( s e a w a r d o f Pasco, Hernando a n d C i t r u s C o u n t i e s t o 83OW. l o n g i t u d e ) i s e s s e n t i a l , l y a l o c a l i z e d f i s h e r y p u r s u e d b u i - s h e r m e n r e s i d i n g ,% i n t h e t r i c o u n t y a r e a and, t o some e x t e n t , f i s h e r m e n f r o m a d j a c e n t c o u n t i e s . as. The l o c a l i z e d n a t u r e o f t h e f i s h e r y i s due t o t h e f a c t t h a t s t o n e c r a b f i s h e r m e n m u s t make d a i l y t r i p s i n t h a t t h e i r p r o d u c t i s no t r e f r i g e r a t e d a t sea and due t o t h e f a c t t h a t v e r y s p e c i a l i z e d s h r i m p t r a w l i n g g e a r i s r e q u i r e d t o f i s h t h e a rea . The i n s h o r e t r a w l i n g a r e a ( i n s i d e t h e 3 0 - f o o t c o n t o u r ) f r o m P i n e l l a s C o u n t y n o r t h t h r o u g h D i x i e a n d T a y l o r C o u n t i e s ( T a b l e 1 ) c o n s i s t s p r i m a r i l y o f g rass beds w i t h l o w r e l i e f r u b b l e ( r o c k s , e t c . ) b r o k e n by o p e n sandy a reas . To f i s h t h e s e a r e a s t h e f i s h e r m e n have deve l o p e d a s p e c i a l i z e d t r a w l ( a r i g i d frame r o l l e r t r a w l ) w h i c h a l l o w s them t o o p e r a t e o v e r t h e g r a s s beds w i t h no damage a n d w h i c h p i v o t s a n d r i d e s o v e r l o w r e 1 i e f o b s t r u c t i o n s . Shr imp v e s s e l s f r o m o t h e r p a r t s o f t h e G u l f e q u i p p e d w i t h o t t e r t r a w l s c a n n o t o p e r a t e i n t h i s f i s h i n g a r e a , b u t do o p e r a t e f u r t h e r o f f s h o r e i n open, u n v e g e t a t e d b o t t o m s ( F i g u r e 1 ) . I n 1983 , 222 s h r i m p b o a t s and v e s s e l s ( f i v e n e t t o n s o r l a r g e r ) o p e r a t e d i n t h e f i s h e r y o f f t h e t r i c o u n t y a r e a ( a n d i n s h o r e o f 83OW. l o n g i t u d e ) . T h e s e c o n s i s t e d o f 1 4 7 s h r i m p c o m n e r c i a l and b a i t b o a t s a n d v e s s e l s based i n p o r t s i n t h e t r i c o u n t y a r e a a n d 75 b o a t s and v e s s e l s f r o m o t h e r c o u n t i e s w h i c h f r e q u e n t l y o r o c c a s i o n a l l y f i s h e d t h e a rea . F o r t y - t h r e e p e r c e n t o f t h e s e f i s h i n g c r a f t w e r e documented v e s s e l s and ave raged 3 0 t o 32 f e e t i n l e n g t h . T h e s e f i s h i n g c r a f t u t i l i z e d 489 r i g i d f r a m e r o l l e r t r a w l s v a r y i n g i n w i d t h f r m 1 2 t o 1 6 f e e t . M o s t b o a t s w e r e d o u b l e r i g g e d w i t h two 1 2 - f o o t t r a w l s . T h e r e we re a p p r o x i m a t e l y 540 f i s h e r m e n a b o a r d t h e f i s h i n g c r a f t . I n 1982 , c o m n e r c i a l ( f o o d ) c a t c h e s o f s h r i m p f r o m t h e t r i c o u n t y a r e a l a n d e d i n t r i c o u n t y p o r t s was 424.9 t h o u s a n d pounds and l a n d i n g s o f b a i t s h r i m p ( p r i m a r i l y l i v e s h r i m p ) w e r e 284.8 t housand pounds ( T a b l e 1 ) . These b a i t s h r i m p c o n s t i t u t e d a b o u t 42 p e r c e n t o f t h e b a i t s h r i m p landed o n t h e w e s t c o a s t o f F l o r i d a d u r i n g 1982 and s u p p l i e d m a r k e t s o n t h e e a s t a n d west c o a s t s o f F l o r i d a . An u r m e a s u r a b l e amount o f c o m n e r c i a l s h r i m p caugh t f r o m t h e t r i c o u n t y a r e a was p r o b a b l y l a n d e d a t P i n e l l a s , L e v y , and D i x i e C o u n t y p o r t s . A p p r o x i m a t e l y 7 0 p e r c e n t o f annua l b a i t s h r i m p c a t c h a n d 72 p e r c e n t o f a n n u a l c o m n e r c i a l s h r i m p c a t c h was h a r v e s t e d d u r i n g t h e s t o n e c r a b s e a s o n ( E n v i r o r m e n t a l Assessment , T a b l e s 2 and 3 ) . I n 1983 , 7 0 s t o n e c r a b b o a t s a n d v e s s e l s o p e r a t e d i n t h e f i s h e r y o f f t h e t r i c o u n t y a rea . F i f t y o f t h e s e w e r e based i n t r i c o u n t y p o r t s a n d a p p r o x i m a t e l y 2 0 f i s h i n g c r a f t f r o m o t h e r c o u n t i e s o c c a s i o n a l l y f i s h e d t h e a r e a . A p p r o x i m a t e l y 4 7 p e r c e n t were documented v e s s e l s w h i c h were t y p i c a l l y 2 8 t o 31 f e e t i n l e n g t h . A p p r o x i m a t e l y 96,000 t r a p s we re u t i l i z e d (1 ,000 p e r b o a t a n d 1 ,800 p e r v e s s e l ) i n t h e f i s h e r y . Each t r a p was i n d i v i d u a l l y buoyed. T r a p s we re s e t i n l i n e s a p p r o x i m a t e l y 1 5 0 f e e t a p a r t , n o r m a l l y i n s t r i n g s o f 500 t o 600 t r a p s . A p p r o x i m a t e l y 2 1 0 f i s h e r m e n were a b o a r d t h e s t o n e c r a b f i s h i n g c r a f t . I n 1982 , 769,000 pounds o f s t o n e c r a b s w e r e h a r v e s t e d and t h e i r c laws l a n d e d ( a p p r o x i m a t e l y 5 0 p e r c e n t o f l i v e w e i g h t ) . An u r m e a s u r a b l e , b u t p r o b a b l y n o t s i g n i f i c a n t , amount o f s t o n e c r a b c a u g h t o f f t h e t r i c o u n t y a r e a was l a n d e d a t P i n e l l a s and L e v y C o u n t y p o r t s . The AP d e s c r i b e d each f , i s h e r y i n te rms o f a r e a s f i j hed , most p r o d u c t i v e -< +%L a r e a s , and c o n f l i c t a r e a s ( F i g u r e s 1 and 2 ) . I n g e n e r a r f i s h i n g o c c u r r e d .z= by b o t h g r o u p s i n e s s e n t i a l l y t h e same a reas . O n l y b a i t s h r i m p i ng, w h i c h was u s u a l l y c o n f i n e d t o t h e n e a r s h o r e w a t e r s (due t o n e c e s s i t y o f k e e p i n g s h r i m p a l i v e ) , d i d n o t g e n e r a l l y compete f o r space w i t h c o m n e r c i a l c r a b b e r s ( F i g u r e 1 ) . However, t h e i r t r a w l i n g a r e a was f r e q u e n t l y u t i l i z e d by r e c r e a t i o n a l c r a b b e r s ( a p p r o x i m a t e l y 100-180 p e r s o n s ) u t i l i z i ng t r a p s . c. P r o p o s e d A c t i o n : The a c t i o n p r o p o s e d t h r o u g h t h i s amendment t o t h e S h r i m p a n d S t o n e C r a b F W s c o n s i s t s o f two measu res w h i c h p r o v i d e a f l e x i b l e s y s t e m w i t h r a p i d r e s p o n s e t i m e f o r a d d r e s s i n g t h e t r i c o u n t y c o n f l i c t i n f u t u r e y e a r s . One measu re p r o v i d e s a s y s t e m f o r e s t a b l i s h i n g f i s h i n g a r e a s i n s t a t e j u r i s d i c t i o n and t h e FCZ ( i n s h o r e o f 83OW. l o n g i t u d e ) t o r e s o l v e t h e c o n f l i c t a n n u a l l y w i t h f l e x i b i l i t y f o r i n s e a s o n changes. The o t h e r m e a s u r e p r o v i d e s t h e R e g i o n a l D i r e c t o r o f N F S (RD) w i t h a u t h o r i t y t o r a p i d l y r e s o l v e a s e r i o u s c o n f l i c t , i f one s h o u l d e r u p t d e s p i t e t h e e s t a b l i s h m e n t o f t h e s e f i s h i n g a r e a s , f o r a t ime s u f f i c i e n t t o e s t a b l i s h o r d e r i n t h e f i s h e r y . The amendment language o f t h e p r o p o s e d a c t i o n w o u l d change t h e S t o n e C r a b FMP [ 4 4 FR 194451 as amended [ 4 7 FR 417571 b y a d d i n g s u b p a r t s " h U and "ill a f t e r s u b p a r t "g1I [ 4 4 FR 19491 ] . The amendment l anguage w o u l d change t h e S h r i m p FMP [ 4 5 FR 741781 as amended [ 4 7 FR 41041 and as a d m i n i s t r a t i v e l y amended May 7 , 1982 ( C o u n c i l document d a t e d November, 1981 ) b y a d d i n g a M e a s u r e 9 ( b ) and 9 ( c ) a n d r e n u m b e r i n g M e a s u r e 9 as 9 ( a ) o n page 8-19 o f t h e c u r r e n t FMP t e x t (Counc i l docume n t d a t e d November , 1981 ) . M e a s u r e A. P r o c e d u r e f o r e s t a b l i s h i n g f i s h i n g a r e a s f o r s h r i m p a n d s t o n e c r a b f i s h e r m e n i n t h e FCZ ( i n s h o r e o f 83OW. l o n g i t u d e ) o f f Pasco , He rnando and C i t r u s C o u n t i e s , F l o r i d a t o p r o v i d e f o r o r d e r l y , p r o d u c t i v e f i s h e r i e s and t o a l l e v i a t e c o n f l i c t i n t h e f i s h e r i e s . 1 S t o n e C r a b FNP r e f e r e n c e : s u b p a r t " h " ; S h r i m p FMP r e f e r e n c e : Measu re 9 ( b ) . . \ S t e p : f ( 1 ) The Pasco, Hernando , and C i t r u s C o u n t i e s S h r i m p i ng a n d C r a b b i n g A d v i s o r y C o m n i t t e e ( C o m n i t t e e ) s h a l l d e v e l o p p r o p o s e d e x c l u s i v e f i s h i n g a reas f o r s h r i m p t r a w l i n g and f o r c r a b b i n g o r o t h e r r e c o m n e n d a t i o n s t o r e s o l v e t h e c o n f l i c t i n b o t h s t a t e w a t e r s a n d t h e FCZ i n s h o r e o f 83O W. l o n g i t u d e , a t i t s pub1 i c mee t i ngs . Such a z o n i n g p r o p o s a l f o r f i s h i n g a r e a s o r s u g g e s t e d change t o a n e x i s t i n g z o n i n g r u l e may be i n i t i a t e d a t any t i m e by t h e Comni t t e e i n r e s p o n s e t o chang i ng c o n d i t i o n s i n t h e f i s h e r y and may i n c l u d e z o n i n g c o n f i g u r a t i o n s t h a t f l u c t u a t e o r change o n s p e c i f i c d a t e s t o a l l o w f o r op t imum p r o d u c t i o n by t h e u s e r g roups a f f e c t e d . ( 2 ) The Comni t t e e w i l I submi t t h e z o n i n g p r o p o s a l t o t h e S t a t e r e g u l a t o r y agen c i e s (FDNR a n d F l o r i d a M a r i n e F i s h e r i e s Comniss i o n ) f o r i m p l e m e n t a t i o n i n s t a t e w a t e r s and may s u b m i t t h e p r o p o s a l t o t h e C o u n c i l f o r r e v i e w . ( 3 ) The C o u n c i I , a f t e r i n i , t i a l r e v i e w , may s u b m i t comnents t o t h e S t a t e p o i n t i n g o u t i t s d e f i c ' i e n c i e s f o r i m p l e m e n t a t i o n f n Fei%?al w a t e r s , o r t h e ' '* C o u n c i l may t a k e t h e p r o p o s a l u n d e r a d v i s e m e n t u n t i l t h e y a v a i l t h e m s e l v e s o f comment p r e s e n t e d a t pub1 i c h e a r i n g s h e l d by t h e S t a t e a n d u n t i l t h e S t a t e has recomnended i t s a d o p t i o n by t h e C o u n c i l . ( 4 ) A f t e r t h e S t a t e has c o m p l e t e d i t s r e v i e w and a c c e p t e d t h e p r o p o s a l f o r p r o m u l g a t i o n as r u l e , t h e S t a t e s h a l l r e q u e s t t h e C o u n c i l a d o p t t h a t p o r t i o n o f t h e z o n i n g p r o p o s a l r e l a t i n g t o t h e FCZ. The C o u n c i l w i I l r e v i e w t h e p r o p o s a l and a d m i n i s t r a t i v e r e c o r d d e v e l o p e d by t h e S t a t e i n s u p p o r t o f i t s " p r o p o s e d r u l e , and w i I l recomnend t h e RD imp lement ( o r no t i m p l e m e n t ) t h e z o n i n g p r o p o s a l o r imp lement t h e p r o p o s a l w i t h m i n o r m o d i f i c a t i o n s i n t h e FCZ b y n o t i c e i n t h e F e d e r a l R e g i s t e r . I f t h e c o u n c i l o r RD j udges t h a t t h e o p p o r t u n i t y f o r pub1 i c comnent t h r o u g h t h e S t a t e sys tem was i n a d e q u a t e , t h e y may h o l d p u b l i c h e a r i n g s o n t h e z o n i n g p r o p o s a l a f f e c t i n g t h e FCZ. The C o u n c i l may a l s o a v a i l i t s e l f o f t h e a d v i c e and c o u n s e l o f i t s SSC, i t s S h r i m p and S t o n e C r a b APs o r a n Ad Hoc AP r e p r e s e n t a t i v e , o f p e r s o n s f i s h i n g F e d e r a l w a t e r s i n t h e r e v i e w o f t h e p r o p o s a l . S h o u l d t h e C o u n c i l recomnend t h a t t h e F e d e r a l p o r t i o n o f t h e p r o p o s a l n o t be imp lemen ted o r be r n o d i f i e d , i t s h a l l i m m e d i a t e l y n o t i f y t h e S t a t e and s p e c i f y i t s r e a s o n s f o r such a c t ion. I f such a c t i o n b y t h e C o u n c i l w i l l r e s u l t i n p r e v e n t i n g a r e g u l a t i o n f r o m becom ing e f f e c t i v e b y t h e n e x t s t o n e c r a b season, t h e C o u n c i l may recomnend t h e S e c r e t a r y imp lement a n a l t e r n a t i v e b y emergency r u l e f o r 9 0 o r 1 8 0 days o r u n t i l t h e i s s u e has been r e s o l v e d w i t h t h e S t a t e . ( 5 ) I f t h e RD, a f t e r r e c e i v i n g t h e r e c o m n e n d a t i o n s o f t h e C o u n c i l , c o n c l u d e s t h a t such r e c o m n e n d a t i o n i s c o n s i s t e n t w i t h t h e o b j e c t i v e s o f t h e FMPs, t h e Magnuson A c t and o t h e r a p p l i c a b l e law, he s h a l l imp lemen t i t as F e d e r a l r e g u l a t i o n b y n o t i c e i n t h e F e d e r a l R e g i s t e r . Such r e g u l a t i o n when i m p l e m e n t e d w i l l r e m a i n i n e f f e c t u n t i l a c t i o n i s t a k e n b y t h e C o u n c i l t o m o d i f y i t u n d e r t h e p r e c e d i n g p r o c e s s . I f t h e RD does n o t imp lemen t t h e recommended r u l e o f t h e Counc i I , he s h a l I i m n e d i a t e l v no t i f v t h e Counc i l and S t a t e o f h i s r e a s o n s f o r s u c h a c t i o n and may s u g g e s t a n a l t e r n a t i v e t o >. t h e recomnended r u l e . The C o u n c i I , a f t e r c o n f e r r i n g w i t h t h e S t a t e , s h a l I ,' i m m e d i a t e l y a d v i s e t h e RD as t o t h e a c c e p t a b i l i t y o f t h e a l t e r n a t i v e . ( 6 ) I n t h e e v e n t t h a t t h e C o r m i t t e e f a i l s t o a c t o r i s u n a b l e t o d e v e l o p a compromise s o l u t i o n f o r f i s h i n g t h e a rea , o r i f t h e C o r n n i t t e e i s a b o l i s h e d o r o t h e r w i s e becomes n o n f u n c t i o n a l , t h e C o u n c i l w i l l c a l 1 u p o n t h e F l o r i d a M a r i n e F i s h e r i e s C o m n i s s i o n t o p r o v i d e t h e r e c o r m e n d a t i ons u n d e r s t e p s ( 1 ) and ( 2 ) . The C o u n c i l may u t i l i z e i t s own Ad Hoc AP c o n s i s t i n g o f f i s h e r m e n f r o m t h e a r e a a f f e c t e d t o a d v i s e t h e C o u n c i l o n t h e a c c e p t a b i l i t y o f t h e s e recomnendat i ons . I n t h e e v e n t t h e C o m i t t e e i s e n l a r g e d o r r e s t r u c t u r e d t o have a u t h o r i t y o v e r z o n i n g f o r o t h e r c o u n t i e s , t h e r e s t r u c t u r e d c o m n i t t e e may p r o v i d e r e c a n m e n d a t i o n s u n d e r S t e p s ( 1 ) and ( 2 ) . ( 7 ) I n t h e e v e n t t h a t o t h e r measures f o r r e s o l v i n g t h e c o n f l i c t , such as g e a r a n d f i s h i n g t e c h n i q u e m o d i f i c a t i o n s , a r e j u d g e d as p r a c t i c a b l e b y t he S t a t e a n d when t h e S t a t e p r o p o s e s t o r e q u i r e t h e measures b y S t a t e r u l e i n l i e u o f z o n i n g , t h e C o u n c i l may r e q u e s t t h e RD imp lemen t s i m i l a r r u l e s i n f e d e r a l w a t e r s o f t h e a r e a and r e s c i n d t h e r u l e s s p e c i f y i n g zones. Such i m p l e m e n t a t i o n by t h e RD s h a l l b e by t h e r e g u l a t o r y amendment p r o c e s s a n d w i l l be p r e c e d e d b y p r e p a r a t i o n o f a SElS a n d S R I t , and - - h o l d i n g o f pub1 i c i <.- - -* =* h e a r i ngs. dlt. ( 8 ) N o t w i t h s t a n d i ng t h e p r o c e d u r a l s t e p s ( 1 ) t h r o u g h ( 7 ) , t h e RD, i n con s u l t a t i o n w i t h o r based o n r ecommenda t i ons b y t h e C o u n c i l , may t h r o u g h t h e r e g u l a t o r y amendment p r o c e s s ( p r e p a r a t i o n o f SElS o r EA and SRIR, h o l d i n g p u b 1 i c h e a r i n g s , e t c . , ) t a k e such a c t i o n as may be n e c e s s a r y a n d a p p r o p r i a t e t o r e s o l v e any c o n f l i c t i n t h i s o r any o t h e r p a r t o f t h e FCZ, p r o v i d i n g such a c t i o n i s c o n s i s t e n t w i t h t h e o b j e c t i v e s o f t h e FMPs, t h e Magnuson A c t and o t h e r a p p l i c a b l e l a w and i s t a k e n i n a manner w h i c h t o t h e maximum e x t e n t p r a c t i c a b l e i s c o n s i t e n t w i t h a c t i o n recomnended by o r t a k e n by t h e a d j a c e n t c o a s t a l st-ate. The a u t h o r i t y p r o v i d e d t h e R e g i o n a l D i r e c t o r h e r e i n may be e x e r c i s ' e d b y n o t i c e i n t h e F e d e r a l R e g i s t e r i n e v e n t a more t i m e l y r e g u l a t o r y r e s p o n s e i s r e q u i r e d t o r e s o l v e o r p r e v e n t o c c u r r e n c e o f c o n f l i c t as c o n s i d e r e d h e r e i n . I n t h e e v e n t s u c h a c t i o n b y n o t i c e i s t a k e n by t h e R e g i o n a l D i r e c t o r i t s h a l l be w i t h t h e c o n c u r r e n c e o f a m a j o r i t y o f t h e C o u n c i l t h a t ( 1 ) t h e c o n f l i c t i n v o l v e d r e q u i r e s a m o r e i m m e d i a t e r e s p o n s e t h a n t h a t a v a i l a b l e t h r o u g h t h e r e g u l a t o r y amendment p r o c e s s and ( 2 ) t h a t t h e p r o p o s e d n o t i c e i s c o n s i s t e n t w i t h t h e o b j e c t i v e s o f t h e FdWs, t h e Magnuson A c t and o t h e r a p p l i c a b l e l a w and i s t a k e n i n a manner w h i c h t o t h e maximum e x t e n t p r a c t i c a b l e i s c o n s i s t e n t w i t h a c t i o n recomnended o r t a k e n b y t h e a d j a c e n t c o a s t a l s t a t e . Measu re B. P r o c e d u r e f o r t e r m i n a t i ng a c o n f l i c t o r p r e v e n t i n g a v i o l e n t c o n f r o n t a t i o n b e t w e e n s h r i m p and s t o n e c r a b f i s h e r m e n i n w a t e r s i n s h o r e o f 83OW. l o n g i t u d e o f f Pasco, Hernando and C i t r u s C o u n t i e s , F l o r i d a . 2 I n t h e e v e n t t h a t t h e RD d e t e r m i n e s , b a s e d o n r e 1 i a b l e i n f o r m a t i o n f r o m a p p r o p r i a t e l aw e n f o r c e m e n t a g e n c i e s , t h a t t h e e x i s t i n g management r e g u l a t i o n s e s t a b l i s h e d by M e a s u r e I1hl1 [ o r 9 ( b ) ] a r e i n a d e q u a t e t o p r e v e n t c o n f l i c t and t h a t d i r e c t c o n f l i c t h a s o c c u r r e d o r i s i r r rn inen t , he may t ake o n e o r m o r e o f t he f o l l o w i ng a c t i o n s b y n o t i c e i n t h e F e d e r a l R e g i s t e r : S t o n e C r a b F W r e f e r e n c e : s u b p a r t llill; S h r i m p FMP r e f e r e n c e : M e a s u r e 9 ( c ) 9 1. I n c o n j u n c t i o n w i t h s i m i l a r a c t i o n b y t h e S t a t e o f F l o r i d a c l o s e t h e e n t i r e a r e a ( i n s h o r e o f 83OW. l o n g i t u d e ) o r p o r t i o n t h e r e o f t o s h r i m p and s t o n e c r a b f i s h i n g f o r a p e r i o d n o t t o e x c e e d 30 days ; 2. C l o s e t h e FCZ ( i n s h o r e o f 83OW. l o n g i t u d e ) o r p o r t i o n t h e r e o f o f t h e a r e a t o s h r i m p and s t o n e c r a b f i s h i n g f o r a p e r i o d no t t o exceed 3 0 days; 3 . C o o p e r a t i v e l y w i t h t h e S t a t e o r w i t h c o n s e n t o f t h e S t a t e , d i v i d e t h e e n t i r e a r e a ( i n s h o r e o f 83OW. l o n g i t u d e ) o r p o r t i o n t h e r e o f , i n t o t w o o r f o u r eas t -wes t f i s h i n g a r e a s , s e p a r a t e d by a p p r o p r i a t e b u f f e r z o n e s , f o r t h e d u r a t i o n o f t h e s t o n e c r a b s e a s o n ( o r s u c h o t h e r p e r i o d as deemed a p p r o p r i a t e ) . Sh r imp t r a w l i n g and s t o n e c r a b f i s h i n g w i l l b e a l l o w e d o n l y i n a l t e r n a t e f i s h i n g a r e a s and w i l l be p r o h i b i t e d i n t h e b u f f e r zones. The e n t i r e a r e a w i l l be c l o s e d t o s h r i m p and s t o n e c r a b f i s h i n g f o r t e n days t o a l l ow movement o f c r a b t r a p s i n t o t h e c r a b b i n g a r e a s s p e c i f i e d i n t h e r u l e ; - =. - -- ~ 3 2 ~ ax 4. M o d i f y t h e c o n f i g u r a t i o n o f t h e b o u n d a r i e s o f t h e f i s h i n g a r e a s e x i s t i n g u n d e r F e d e r a l r e g u l a t i o n i n t h e FCZ f o r t h e d u r a t i o n o f t h e s t o n e c r a b season and c l o s e t h e f i s h e r y i n t h e a r e a s a f f e c t e d f o r t e n days t o a l l o w s t o n e c r a b t r a p s t o be moved. He may p r o v i d e such b u f f e r zones w h e r e no f i s h i n g i s a1 lowed, as a r e deemed necessa ry . N o t l a t e r t h a n 72 h o u r s a f t e r t h e e f f e c t i v e d a t e o f t h e r e g u l a t i o n , t h e RD s h a l l \3 c o n d u c t a f a c t - f i n d i n g m e e t i n g whose p a r t i c i p a n t s s h a l l i n c l u d : , b u t no t be I i m i t e d t o , t h e f o l l ow i ng: 1. C h a i r m a n o f t h e C o u n c i l a n d / o r such o t h e r r e p r e s e n t a t i v e s as t h e C h a i r m a n deems a p p r o p r i a t e ; 2. The D i r e c t o r o f t h e F l o r i d a D e p a r t m e n t o f N a t u r a l R e s o u r c e s a n d / o r such o t h e r r e p r e s e n t a t i v e s as t h e D i r e c t o r deems a p p r o p r i a t e ; 3. The C h a i r m a n o f t h e F l o r i d a M a r i n e F i s h e r i e s C o m n i s s i o n a n d / o r such o t h e r r e p r e s e n t a t i v e s as t h e C h a i r m a n deems a p p r o p r i a t e ; 4. L o c a l news med ia as may be a p p r o p r i a t e ; 5. Such u s e r g r o u p r e p r e s e n t a t i v e s o r o r g a n i z a t i o n s as may b e a p p r o p r i a t e and p r a c t i c a b l e ; 6. O the r - s deemed a p p r o p r i a t e b y t h e RD. The f a c t - f i nd i ng m e e t i n g s h a l l be f o r t h e p u r p o s e o f e v a l u a t i n g t h e f o l l o w i n g : 1. The e x i s t e n c e and s e r i o u s n e s s o f t h e c o n f l i c t n e e d i n g r e s o l u t i o n by t h e e x i s t i n g r u l e ; 2. The a p p r o p r i a t e d u r a t i o n o r m o d i f i c a t i o n o f t h e r u l e ; 3. O t h e r s o l u t i o n s t o t h e c o n f l i c t ; 4. O t h e r r e l e v a n t m a t t e r s . The RD w i t h i n t e n days a f t e r c o n c l u s i o n o f t h e f a c t - f i n d i n g m e e t i n g s h a l l e i t h e r r e s c i n d , m o d i f y o r a l l o w t h e r e g u l a t i o n t o r e m a i n unchanged t h r o u g h n o t i c e i n t h e F e d e r a l R e g i s t e r . d. R a t i o n a l e S u p p o r t i n g t h e P roposed A c t i o n : Measures ( A ) and ( B ) address t h e o b j e c t i v e s o f t h e S t o n e C r a b and S h r i m p FMPs. The f i r s t o b j e c t i v e o f t h e S t o n e C r a b F W i s t o p r o v i d e f o r a n o r d e r l y s t o n e c r a b f i s h e r y b y r e d u c i n g c o n f l i c t b e t w e e n s t o n e c r a b and s h r i m p f i s h e r m e n . The s i x t h o b j e c t i v e o f t h e Sh r imp FMP i s t o m i n i m i z e c o n f l i c t s b e t w e e n s h r i m p and s t o n e c r a b f i shermen. 1. Measure A. The s h r i m p and s t o n e c r a b f i s h e r i e s ( F i g u r e s 1 a n d 2 ) o f f Pasco, He rnando and C i t r u s C o u n t i e s , F l o r i d a , h a v e a l o n g h i s t o r y o f c o m p e t i t i o n f o r f i s h i n g a r e a a n d o f c o n f l i c t b e t w e e n t h e f i she rmen . The f i s h e r m e n t hemse l ves and t h e S t a t e o f F l o r i d a h a v e a t t e m p t e d t o r e s o l v e t h e c o n f l i c t b y e s t a b l i s h i n g e x c l u s i v e f i s h i n g - a r e a d o r s h r i m p t r a w l i n g a n d f o r c r a b b i n g . These e f f o r t s have m e t w i t h m o d e r a t e s u c c e s s b u t w e r e g e n e r a l l y o f l irni t e d d u r a t i o n . Because o f t h e e x p a n s i o n o f b o t h s h r i m p and s t o n e c r a b f i s h e r i e s t h e p r o b l e m was moved f r o m S t a t e r e g u l a t e d a r e a s i n t o t h e FCZ and t h e w a t e r s o f o t h e r c o u n t i e s . The C o u n c i l a t t e m p t e d t o a d d r e s s a s o l u t i o n , i n t h e FCZ, t h r o u g h a d r a f t amendment p r e s e n t e d t o t h e p u b l i c i n e a r l y 1983. T h i s e f f o r t was a l s o judged i nadequa t e. T h i s p r o p o s e d amendment a d d r e s s e s t h e g e a r c o n f l i c t b e t w e e n sh r imp a n d s t o n e c r a b f i s h e r m e n i n t h e n e a r s h o r e w a t e r s ( i n s i d e 83OW. l o n g i t u d e ) o f f Pasco, Hernando and C i t r u s C o u n t i e s , F l o r i d a . The a r e a a f f e c t e d i s s u b j e c t t o f i s h i n g l a r g e l y b y f i s h e r m e n r e s i d i n g i n t h e t r i c o u n t y a r e a and n e i g h b o r i n g c o u n t i e s , and, t h e r e f o r e , t h e c o n f l i c t i s a l o c a l i z e d p r o b l e m t h e r e g u l a t i o n o f w h i c h w i l l n o t g e n e r a l l y impac t f i s h e r m e n f r o m o t h e r a reas . T h i s r e s u l t s f r o m t h e f a c t t h a t t h e s t o n e c r a b f i s h e r m e n m u s t make one-day t r i p s , s i n c e t h e i r p r o d u c t i s n o t r e f r i g e r a t e d , t h e r e b y , p r e c l u d i ng p a r t i c i p a t i o n by s t o n e c r a b f i s h e r m e n f r o m o t h e r a reas . I n o r d e r t o s h r i m p t h e a rea , w h i c h i s l a r g e l y g r a s s beds b r o k e n b y low r e 1 i e f r u b b l e , s p e c i a l i z e d t r a w l i n g gear i s r e q u i r e d w h i c h p r e c l u d e s s h r i m p f i s h e r m e n f r o m o t h e r a r e a s , who a r e n o r m a l l y e q u i p p e d w i t h o t t e r t r a w l s , f r o m p a r t i c i p a t i n g . T h e r e f o r e , r e s o l u t i o n o f t h e c o n f l i c t i s l a r g e l y a l o c a l p r o b l e m and s h o u l d be based o n s o l u t i o n s p r o p o s e d b y l o c a l f i she rmen . The S t a t e o f F l o r i d a has e s t a b l i s h e d b y s t a t u t e a Pasco, Hernando , a n d C i t r u s C o u n t i e s S h r i m p i n g and C r a b b i n g A d v i s o r v Comni t t e e (Comni t t e e ) . The Comni t t e e c o n s i s t s o f r e p r e s e n t a t i v e s o f l e s h r i m p and s t o n e c r a b f i s h e r m e n o f t h e t h r e e c o u n t y a r e a and i s c h a r g e d w i t h d e v e l o p i n g f i s h i n g zones i n t h e s t a t e w a t e r s ( a b o u t t w o - t h i r d s o f t h e t o t a l a r e a i n v o l v e d ) t o r e s o l v e t h e c o n f l i c t . Such p r o p o s e d z o n i n g i s s u b m i t t e d t o t h e S t a t e f o r p r o m u l g a t i o n as r u l e . The S t a t e may adop t o r r e j e c t t h e p r o p o s e d z o n i n g p l a n b u t may n o t m o d i f y i t . I f t h e p r o p o s e d z o n i n g i s r e j e c t e d , t h e Comni t t e e may submi t a l t e r n a t i v e z o n i ng p r o p o s a l s t o t h e S t a t e . T h i s sys tem e n s u r e s t h a t t h e p r o p o s e d z o n i n g i s a r e s u l t o f compromi se be tween r e p r e s e n t a t i v e s o f t h e two g r o u p s o f f i s h e r m e n . The p r o p o s e d f r amework amendment w i l l u t i l i z e as i t s b a s i s t h i s same sys tem b y e x t e n d i n g t o t h e C o m n i t t e e t h e r i g h t t o p r o p o s e z o n i n g o f f e d e r a l w a t e r s ( o u t t o 83OW. l o n g i t u d e ) a d j a c e n t t o t h e S t a t e zones. The use o f t h i s s y s t e m w i l l a c h i e v e t h e f o l l o w i n g a d m i n i s t r a t i v e advan t a g e s : 1. A l low t h e Comni t t e e t o c o n s i d e r z o n i n g o f t h e e n t i r e c o n f l i c t a r e a r e g a r d l e s s o f w h e t h e r t h e w a t e r s a r e S t a t e o r F e d e r a l , t h e r e b y , p r o v i d i n g t h e f l e x i b i l i t y t o a c h i e v e m o r e e q u i t a b l e compromise s o l u t i o n s t h r o u g h z o n i ng; 2 . P r o v i d e t h e C o u n c i l w i t h s u g g e s t e d z o n i n g o f F e d e r a l w a t e r s t h a t i s g e n e r a l l y a c c e p t a b l e t o t h e f i s h e r m e n i n v o l v e d ; 3. P r o v i d e f o r pub1 i c r e v i e w and comnent o n t h e p r o p o s e d s o l u t i o n s t h r o u g h s t a t e h e a r i n g s a n d t h e c o r r e s p o n d e n c e s u b m i t t e d by t h e pub1 i c , t h e res lu l t s o f w h i c h w i l l be a v a i l - a b l e & - C o u n c i l r e v i e w ; - , * a. 4. T h r o u g h S t a t e a p p r o v a l ( o r d i s a p p r o v a l ) and r e c o m n e n d a t i o n s o n t h e p r o p o s e d z o n i n g , p r o v i d e t h e C o u n c i l w i t h i n d i c a t i o n o f t h e S t a t e ' s p o s i t i o n o n t h e c o n f l i c t i s s u e a f f e c t i n g i t s c i t i z e n s ; 5. P r o v i d e t h e maximum d e g r e e o f f l e x i b i l i t y f o r m o d i f i c a t i o n o f t h e z o n i n g , annua l l y o r o n a n i n-season b a s i s , t o accamnodate changes i n t h e f i s h e r y w h i l e m a i n t a i n i n g as i t s b a s i s compromise agreement o f t h e r e p r e s e n t a t i v e s o f t h e two f i s h e r i e s ; a n d i 6. Resu l t i n c o n s i d e r a b l e s a v i n g s t o t h e Counc i l and F e d e r a l g o v e r m e n t i n t i m e and f u n d i n g . Th rough t h e amendment t h e C o u n c i l and t h e R e g i o n a l D i r e c t o r (RD) w i l l m a i n t a i n t h e r i g h t t o r e j e c t t h e C o m n i t t e e r e c o r n n e n d a t i o n s u b m i t t e d v i a t h e S t a t e i f t h e r e c o m n e n d a t i o n s compromise t h e p r o v i s i o n s o f MFCM4 o r a r e c o n s i d e r e d i n e q u i t a b l e t o t h e f i s h e r m e n . The Counc i l and RD may a l s o t a k e i n d e p e n d e n t a c t i o n t o r e s o l v e t h e c o n f l i c t i n F e d e r a l w a t e r s as a r e s u l t o f f a i l u r e o f t h e S t a t e e n t i t i e s t o a c t e x p e d i t i o u s l y , i n a d e q u a t e o p p o r t u n i t y f o r pub1 i c comment o n z o n i n g p r o p o s e d b y t he S t a t e , f a i l u r e o f a n imp lemen ted s y s t e m i n p r e v e n t i n g c o n f l i c t , u n e n f o r c e a b i l i t y o f p r o p o s e d o r imp lemen ted sys tems , o r f o r o t h e r j u s t i f i a b l e r e a s o n s , i n c l u d i n g i n e q u i t y i n p r o p o s e d z o n i n g o f t h e FCZ. The p r o p o s e d amendment w i l l r e s u l t i n s i g n i f i c a n t economic b e n e f i t s t o b o t h g r o u p s o f f i s h e r m e n . Unde r t h e g e n e r a l l y u n r e g u l a t e d f i s h e r y s e a s o n o f 1982-1983 c r a b f i s h e r m e n r e p o r t e d l o s s e s o f t r a p s t h a t r a n g e d f r o m 2 5 t o 50 p e r c e n t o f w h i c h t y p i c a l l y f o u r t o f i v e p e r c e n t we re a t t r i b u t a b l e t o w e a t h e r and t h e r e s t a t t r i b u t a b l e t o s e v e r e d buoys a n d t r a p s b e i n g l o s t due t o t h e t r a p s b e i n g d ragged f r o m t he t r a p l i n e (AP m i n u t e s ) . Sh r imp f i s h e r m e n r e p o r t e d t h a t t h e y l o s t an a v e r a g e o f 2 5 p e r c e n t o f t h e i r t r a w l i n g t i m e i n u n t a n g l i n g t r a p buoy l i n e s f r o m t r a w l s , r i g g i n g and p r o p e l l e r s (AP m i n u t e s ) . These l o s s e s s i g n i f i c a n t l y a f f e c t t h e p r o d u c t i v i t y and o p e r a t i o n e f f i c i e n c y o f b o t h g roups . S h r i m p e r s a r e p o t e n t i a l l y l o s i n g 25 p e r c e n t o f t h e i r p r o d u c t i o n w h i c h w o u l d have been e q u i v a l e n t t o 236,000 pounds o f s h r i m p ( 4 0 p e r c e n t b a i t s h r i m p ) v a l u e d a t $340,300, e x v e s s e l , i n 1982. T h i s does n o t i n c l u d e c o s t s i n c u r r e d due t o t o w i n g i n c a p a c i t a t e d v e s s e l s w i t h l i nes i n w h e e l s ; damage t o t r a w l s , r i g g i n g o r w a t e r c o o l e d p r o p e l l e r b e a r i n g s ; and h a u l i n g expense f o r l i n e r e m o v a l , p r o p e l l e r and b e a r i n g r e p a i r , e t c . These c o s t s have b e e n c o n s e r v a t i v e l y e s t i m a t e d a t $30,000. C r a b b e r s a r e i n c u r r i n g l o s s e s o f t r a p s c o n s e r v a t i v e l y e s t i m a t e d as 2 5 p e r c e n t o f t h e 96 ,000 t r a p s v a l u e d a t a r e p l a c e m e n t c o s t o f $18 e a c h o r $432,000. I n a d d i t i o n , t h e y a r e l o s i n g t h e p r o d u c t i o n f r o m t h e l o s t t r a p s f o r a p p r o x i m a t e l y t h r e e weeks u n t i l r e p l a c e d . T h i s r e s u l t s i n a n e s t i m a t e d l o s s i n p r o d u c t i o n o f 54,000 pounds o f c l aws (0.75 pounds p e r t r a p p e r week) v a l u e d a t $148,000, e x v e s s e l , i n 1982. Sh r imp f i s h e r m e n a r e i n c u r r i n g l o s s e s e s t i m a t e d a t $370,300 i n l o s t p r o d u c t i v i t y and damage. C r a b f i s h e r m e n a r e i n c u ~ r i n g l o s s e s e s t i m a t e d a t $580 ,000 i n l o s t ge'ar and p r o d u c t i v i t y . As ~ e a s u r e 7 0 - f t h e p r o p o s e d amendment p r o v i d e s f o r e s t a b l i s h i n g e x c l u s i v e f i s h i n g a r e a s b y t h e Commi t t ee w h i c h i s r e p r e s e n t a t i v e o f t h e f i s h e r m e n , i t i s e x p e c t e d t h a t t h e z o n i n g w i l l r e d u c e t h e s e g e a r and p r o d u c t i v i t y l o s s e s t o a neg l i g i b l e l e v e l w h i l e i n s u r i n g e a c h g r o u p ' s access t o t h e m o s t p r o d u c t i v e f i s h i n g a r e a s t h r o u g h o u t t h e s t o n e c r a b season t o t h e maximum e x t e n t p o s s i b l e . 2. Measure B: T h i s measu re i s u n l i k e l y t o be imp lemen ted u n l e s s c o n f l i c t r e s u l t i n g i n v i o l e n c e , l o s s o f l i f e , o r p r o p e r t y , i s o c c u r r i n g o r i s immi nent . The measu re p r o v i d e s t h e RD w i t h a u t h o r i t y t o r a p i d l y i n s t i t u t e a r e g u l a t o r y r esponse t h a t i s comnensu ra te w i t h t h e o f f e n s e s com m i t t e d . The measures w o u l d neve r be imp lemen ted u n l e s s t h e e x i s t i n g r e g u l a t o r y sys tem u n d e r M e a s u r e A f a i l e d . O p t i o n s f o r r e g u l a t o r y a c t i o n i n c l u d e a c o m p l e t e c l o s u r e o f t h e f i s h e r y , o r p o r t i o n s t h e r e o f , f o r a s h o r t d u r a t i o n t o p r o v i d e a c o o l i n g o f f p e r i o d t o s e p a r a t e t h e f i s h i n g a c t i v i t i e s and r e s t o r e o r d e r t o t h e f i s h e r i e s ; s i m i l a r c l o s u r e o f t h e f i s h e r y i n t h e FCZ; and i n s t i t u t i o n o f f i s h i n g a r e a s s e p a r a t e d by b u f f e r zones t o a s s u r e e n f o r c e a b i l i t y and compl iance. The i m p a c t s o f t h e s e o p t i o n s a r e d i s c u s s e d i n t h e D r a f t E n v i r o r m e n t a l A s s e s s m e n t / S u p p l e m e n t a l R e g u l a t o r y Impac t R e v i e w (EA ISR IR ) . e. A l t e r n a t i v e s t o t h e P r o p o s e d A c t i o n : The a l t e r n a t i v e s t o t h e p r o p o s e d a c t i o n a r e d i s c u s s e d i n t h e d r a f t EAISRIR. f. Amendment t o t h e R e g u l a t i o n s : The p r o p o s e d a c t i o n a l s o amends t h e r e g u l a t i o n s o f S h r i m p and S t o n e C r a b FMPs t o p r o h i b i t t h e i n t e n t i o n a l p l a c e m e n t o f any a r t i c l e ( i n c l u d i n g f i s h i n g g e a r ) i n t h e FCZ t h a t w o u l d o b s t r u c t o r i n t e r f e r e w i t h t h e f i s h i n g o p e r a t i o n o f a n o t h e r , t h e u s e o f f i s h i n g gear t o i n t e n t i o n a l l y damage t h e f i s h i n g g e a r o f a n o t h e r , and t h e r e g u l a t i o n s o f S t o n e C r a b FhlP t o p r o v i d e f o r d i s p o s a l o f s t o n e c r a b t r a p s l e f t i n t h e w a t e r i n a r e a s c l o s e d t o c r a b b i n g . The emergency z o n i n g r u l e w h i c h was imp lemented A p r i l 11 , 1983 ( 4 8 FR 1 4 9 0 3 ) i s i n c l u d e d i n t h e r e g u l a t i o n s as a n i n t e r i m r u l e w h i c h w i l l r e m a i n i n e f f e c t u n t i l m o d i f i e d unde r t h e p r o c e d u r e s o f Measure A. T h i s r u l e i s i n c l u d e d o n l y t o ensu re t h a t a r e g u l a t i o n w i l l be i n e f f e c t a t t h e b e g i n n i n g o f t h e 1984 s t o n e c r a b season ( O c t o b e r 5 ) . E N V I R ~ E N T A L ASSESSMENT AND SUPPLEMENTAL REGULATORY IMPACT REVIEW AND l N l T l AL REGULATORY FLEX l B 1 L l TY ANALYS I S OF AMENDMENT NUMBER 2 TO THE F l SHERY MANAGEMENT PLAN FOR THE STONE CRAB FISHERY OF THE GULF OF MEXICO AND OF 1 AMENDMENT NUMBER 3 - =-. TO THE F l SHERY MANAGEMENT PLAN FOR THE SHRIMP F l SHEW OF THE GULF OF MEXICO MARCH, 1984 GULF OF MEX I CO F I SPERY MANAGEMENT COUNC I L LINCOLN C E ~ I E R , SUITE 881 5 4 0 1 WEST KENNEDY BOULEVARD TAMPA, FLORIDA 3 3 6 0 9 ( 8 1 3 ) 228-281 5 E N V I R M E N T A L ASSESSMENT (EA) AND SUPPLEMENTAL REGULATORY IMPACT REVIEW ( S R I R ) AND I N I T I A L REGULATORY FLEX IB IL ITY ANALYSIS ( I R F A ) OF PROPOSED AMENDMENTS TO THE F l SHERY MAMEMENT PLANS AND TO THE REGULAT l ONS FOR THE STONE CRAB AND SHR l MP FISHERIES OF THE GULF OF MEXICO. l n t r o d u c t i o n The f i s h e r y management p l a n s (FMPs) f o r t h e s t o n e c r a b a n d sh r imp f i s h e r i e s o f t h e G u l f o f M e x i c o we re p r e p a r e d by t h e G u l f o f M e x i c o F i s h e r y Management C o u n c i l ( C o u n c i I ) and p r o v i d e f o r management a n d r e g u l a t i o n o f t h e s e f i s h e r i e s i n t h e f i s h e r y c o n s e r v a t i o n zone (FCZ) . When imp lemented , these FMPs r e s o l v e d a n armed c o n f l i c t be tween s t o n e c r a b and t r a w l f i s h e r m e n o p e r a t i n g o f f t h e s o u t h w e s t c o a s t o f F l o r i d a . The S t o n e C r a b FMP was pub1 i s h e d i n t h e F e d e r a l R e g i s t e r o n A p r i l 3 , 1979, and was imp lemen ted b y r e g u l a t i o n on Sep tember 1 4 , 1979. A n E n v i r o r m e n t a l I m p a c t S t a t e m e n t ( E I S ) was p r e p a r e d o n t h e FMP and was f i l e d w i t h t h e E n v i r o r m e n t a l P r o t e c t i o n A g e n c y (EPA). The Shr imp FMP was pub1 i s h e d i n t h e F e d e r a l R e g i s t e r o n November 7, 1980,,and was - - imp lemen ted b y r e g u l a t i o n o n May 20 , 1981. An E I S was p r e p a r e d o n t h e FMP and was f i l e d w i t h EPA. The S e c r e t a r y p r o m u l g a t e d emergency r e g u l a t i o n s amendi ng t h e S t o n e C r a b and Sh r imp FMPs unde r S e c t i o n 3 0 5 ( e ) ( 2 ) o f t h e Magnuson A c t o n A p r i l 6, 1983, u n t i l t h e end o f t h e c r a b season o n May 20. These emergency r e g u l a t i o n s we re i m p l e m e n t e d t o r e s o l v e gea r c o n f l i c t s b e t w e e n s t o n e c r a b and s h r i m p f i s h e r m e n o f f t h e w e s t c e n t r a l c o a s t o f F l o r i d a . The S e c r e t a r y a g a i n imp lemen ted emergency r e g u l a t i o n s i n t h i s a r e a o n O c t o b e r 5, 1983 , amendi ng t h e FMPs f o r a p o r t i o n o f t h e 1983-1984 s t o n e c r a b season because o f gear c o n f l i c t s b e t w e e n t h e s e two g roups . The emergency r u l e was r e p r o m u l g a t e d o n J a n u a r y 3 , 1984, f o r an a d d i t i o n a l 9 0 days. B a c k g r o u n d i n f o r m a t i o n o n t h e p r o b l e m and d e s c r i p t i o n o f t h e f i s h e r i e s i s p r e s e n t e d i n s u b s e c t i o n s ( a ) and ( b ) o f t h e amendment t o t h e FMPs ( a t t a c h e d ) . DESCRIPTION OF THE PROPOSED ACTION The a c t i o n p r o p o s e d t h r o u g h t h i s amendment t o t h e Sh r imp and S t o n e C r a b FMPs c o n s i s t s o f two measures w h i c h p r o v i d e a f l e x i b l e sys tem w i t h r a p i d r e s p o n s e t i m e f o r a d d r e s s i n g t h e c o n f l i c t o f f Pasco, He rnando and C i t r u s C o u n t i e s , F l o r i d a , i n f u t u r e yea rs . One measure p r o v i d e s a sys tem f o r e s t a b l i s h i n g f i s h i n g a r e a s i n s t a t e j u r i s d i c t i o n and t h e FCZ ( i n s h o r e o f 83OW. l o n g i t u d e ) t o r e s o l v e t h e c o n f l i c t annua l l y , w i t h f l e x i b i l i t y f o r i n s e a s o n changes. The o t h e r measure p r o v i d e s t h e R e g i o n a l D i r e c t o r (RD) w i t h a u t h o r i t y t o r a p i d l y r e s o l v e a s e r i o u s c o n f l i c t , i f one s h o u l d e r u p t d e s p i t e t h e e s t a b l i s h n e n t o f t h e s e f i s h i n g a r e a s , f o r a t i m e s u f f i c i e n t t o r e s t o r e o r d e r i n t h e f i s h e r y . The two measu res ( A and B ) a r e d e s c r i b e d i n d e t a i l i n s u b s e c t i o n ( c ) o f t h e amendment t o t h e FMPs ( a t t a c h e d ) . The p r o p o s e d a c t i o n a l s o amends t h e r e g u l a t i o n s t o ( 1 ) p r o h i b i t t h e i n t e n t i o n a l p l a c e m e n t o f any a r t i c l e ( i n c l u d i n g f i s h i n g g e a r ) i n t h e FCZ t h a t w o u l d o b s t r u c t o r i n t e r f e r e w i t h t h e f i s h i n g o p e r a t i o n o f a n o t h e r and t h e i n t e n t i o n a l use o f f i s h i n g gea r t o damage t h e f i s h i n g g e a r o f a n o t h e r , ( 2 ) p r o v i d e f o r d i s p o s a l o f s t o n e c r a b t r a p s l e f t i n t h e w a t e r i n a reas c l o s e d t o c r a b b i n g and ( 3 ) i n c l u d e s a n i n t e r i m z o n i n g r u l e w h i c h w i l l r e m a i n i n e f f e c t u n t i l amended u n d e r t h e p r o c e d u r e s o f Measu re A. NEED FOR THE PROPOSED ACTION The need f o r t h e p r o p o s e d a c t i o n o f i m p l e m e n t i n g t h e two measures i s d i s c u s s e d i n s u b s e c t i o n s ( a ) and ( d ) o f t h e amendment t o t h e FMPs ( a t t a c h e d ) . I n essence t h i s p r o p o s e d a c t i o n i s needed because t h e p o t e n t i a l f o r s e r i o u s c o n f l i c t i s r e a l and t h e S t a t e i s c o n s t r a i n e d f r o m t a k i n g a c t i o n i n t h e FCZ t o a l l e v i a t e t h e s i t u a t i o n . The p r o p o s e d a c t i o n w i l l p r o v i d e t h e f o l l o w i n g bene f i t s w h i c h a r e c o n s i s e n t w i t h t h e FMPsl o b j e c t i v e s : 1. p r o v i d e f o r o r d e r l y c o n d u c t o f s t o n e c r a b and s h r i m p f i s h e r i e s , and 2. m i n i m i z e t h e p o t e n t i a l f o r s e r i o u s c o n f l i c t , and 3 . r educe g e a r l o s s a n d l o s s o f f i s h i n g t i m e by b o t h g roups , and 4. p r o v i d e f o r unimped,ed access t o t h e a r e a d u r i n g the p er- iod t h a t i s - -- 7& g e n e r a l l y m o s t p r o d u c t i v e f o r each f i s h e r y , and X 5. p r o v i d e f o r f l e x i b i l i t y f o r change o f t h e measu res b y t h e Comni t t e e , S t a t e , C o u n c i l and S e c r e t a r y . The p r o p o s e d amendment t o t h e r e g u l a t i o n s i s needed t o p r o h i b i t a n y p e r s o n f r o m i n t e n t i o n a l l y t a k i ng a c t i o n s t o o b s t r u c t o r damage t h e f i s h i n g o p p o r t u n i t y o r gea r o f o t h e r f i s h e r m e n i n t h e two f i s h e r i e s . The p r o p o s e d r e g u l a t i o n w o u l d make i t i l l e g a l f o r f i s h e r m e n t o i n t e n t i o n a l l y p l a c e a r t i c l e s ( i n c l u d i n g g e a r ) , i n a r e a s whe re t r a w l i n g i s a l lowed a n d w h i c h a r e i n t e n t i o n a l l y p l a c e d t o o b s t r u c t such t r a w l i n g a c t i v i t y o r damage t r a w l i ng gear ( i n c l u d i n g v e s s e l s ) . The r e g u l a t i o n f u r t h e r w o u l d make i t i l l e g a l t o i n t e n t i o n a l l y u t i l i z e t r a w l s ( o r o t h e r g e a r ) i n such a manner t h a t w o u l d damage o r o b s t r u c t t h e f i s h i n g gear o f a n o t h e r . The p r o p o s e d r e g u l a t i o n a l s o a l lows e n f o r c e m e n t o f f i c e r s t o d i s p o s e o f such t r a p s f o u n d i n a r e a s c l o s - d t o c r a b b i n g i n t h e m o s t a p p r o p r i a t e manne r , t h e r e b y r e m o v i n g g e a r i l l e g a l l y f ~ s h e d and w h i c h c o n s t i t u t e s a n e n t a n g l e m e n t t h r e a t t o s h r i m p i ng gear. ANALYS I S OF PROPOSED ACT l ONS The p r o p o s e d management measu res and impac t s f o l low: a. Measu re A. P r o c e d u r e f o r e s t a b l i s h i n g f i s h i n g a r e a s f o r s h r i m p and s t o n e c r a b f i s h e r m e n i n t h e FCZ ( i n s h o r e o f 83OW. l o n g i t u d e ) o f f P a s c o , H e r n a n d o and C i t r u s C o u n t i e s , F l o r i d a t o p r o v i d e f o r o r d e r l y , p r o d u c t i v e f i s h e r i e s and t o a l l e v i a t e c o n f l i c t i n t h e f i s h e r i e s . S t e p s ( 1 ) t h r o u g h ( 5 ) o f t h i s p r o c e d u r e ( s e e Amendment, s u b s e c t i o n c ) p r o v i d e f o r t h e e s t a b l i s h n e n t o f e x c l u s i v e f i s h i n g a r e a s f o r s h r i m p t r a w l i n g and c r a b b i n g i n t h e FCZ con c u r r e n t w i t h t h e e s t a b l i s h n e n t o f such a r e a s i n w a t e r s under S t a t e j u r i s d i c t i o n . The c o n f i g u r a t i o n o f t h e s e a r e a s i s recomnended b y t h e Comni t t e e w h i c h c o n s i s t s o f r e p r e s e n t a t i v e s o f t h e two f i s h i n g i n d u s t r i e s . These r e c o m n e n d a t i o n s a r e f o r m u l a t e d a t pub1 i c m e e t i n g s o f t h e Comni t t e e w h i c h a f f o r d s a l l a f f e c t e d p e r s o n s t h e r i g h t t o be h e a r d a n d t o p r o v i d e i n p u t i n t o t h e d e c i s i o n p rocess . The p r o c e d u r e a l l o w s t h e C o m n i t t e e t o recomnend , changes t o t h e a r e a c o n f i g u r a t i o n s a t any t i m e and t o i n s t i t u t e i n s e a s o n changes t o a f f o r d t h e maximum d e g r e e o f a c c e s s t o e a c h g roup a t t i m e s o f t h e y e a r when i t i s mos t advan tageous t o them t o f i s h e a c h a rea . The e s t a b l i shmen t o f such e x c l u s i v e f i s h i n g a r e a s w i l l r e s u l t i n d e n y i n g a c c e s s t o some members o f each g r o u p t o a r e a s t hey t r a d i t i o n a l l y have f i s h e d . C o n v e r s e l y , however , o v e r t h e l ong - t e rm , e a c h g roup s h o u l d g a i n e x c l u s i v e a c c e s s t o a r e a s t h a t p r o v i d e t h e b e s t f i s h i n g o p p o r t u n i t y f o r t h e i r f i s h e r y . The l o s s o f p r o d u c t i v i t y f r o m d e n i e d access t o a n e n t i r e a r e a i s e x p e c t e d t o be m o r e t h a n compensa ted f o r by t h e economic b e n e f i t s a c c r u i n g t o each g roup f r o m r e s o l u t i o n o f t h e c o n f l i c t . D u r i n g t h e g e n e r a l l y u n r e g u l a t e d f i s h i n g s e a s o n o f 1982-1983 c r a b f i s h e r m e n r e p o r t e d l o s s e s o f t r a p s t h a t r a n g e d f r o m 2 5 t o 50 p e r c e n t o f w h i c h t y p i c a l l y f o u r t o f i v e p e r c e n t was a t t r i b u t a b l e t o w e a t h e r and t h e r e s t a t t r i b u t a b l e t o s e v e r e d buoys and t r a p s b e i n g l o s t due t o t h e t r a p s b e i n g d r a g g e d f r o m t h e t r a p I i n e (AP m i n u t e s ) . Shr imp f i s h e r m e n r e p o r t e d t h a t t hey l o s t a n ave rage o f 2 5 p e r c e n t o f t h e i r t r a w l i n g t i m e i n u n t a n g l i n g t r a p buoy I i n e s f r o m t r a w l s , r i g g i n g and p r o p e l l e r s (AP m i n u t e s ) . These l o s s e s s i g n i f i c a n t l y a f f e c t t h e p r o d u c t i v i t y and o p e r a t i o n e f f i c i e n c y o f b o t h groups. S h r i m p e r s l o s t a n e s t i m h t e d 25 p e r c e n t o f t h e i r p o ~ e n t i ~ i o d u c t i o n w h i c h - - a &x was e q u i v a l e n t t o 236 ,000 pounds o f s h r i m p ( 4 0 p e r c e n t b a i t s h r i m p ) v a l u e d a t $340,300, e x v e s s e l , i n 1982 ( T a b l e s 1 , 2 and 3 ) . T h i s d i d n o t i n c l u d e c o s t s i n c u r r e d due t o t o w i n g i n c a p a c i t a t e d v e s s e l s w i t h l i n e s i n whee ls ; damage t o t r a w l s , r i g g i n g o r w a t e r c o o l e d p r o p e l l e r b e a r i n g s ; a n d h a u l i n g expense f o r l i n e r emova l , p r o p e l l e r and b e a r i n g r e p a i r , e t c . These c o s t s have been c o n s e r v a t i v e l y e s t i m a t e d a t $30 ,000 ( $ 1 3 5 p e r b o a t ) . C r a b b e r s i n c u r r e d l o s s e s o f t r a p s c o n s e r v a t i v e l y e s t i m a t e d as 2 5 p e r c e n t o f t h e 96 ,000 t r a p s , v a l u e d a t a r e p l a c e m e n t c o s t o f $ 1 8 each o r $432,000. I n a d d i t i o n , t h e y l o s t t h e p r o d u c t i o n f r o m t h e s e t r a p s f o r a p p r o x i m a t e l y t h r e e weeks u n t i l r e p l a c e d . T h i s r e s u l t e d i n a n e s t i m a t e d l o s s i n p r o d u c t i o n o f 54,000 pounds o f c l aws (0.75 pounds p e r t r a p p e r week ) v a l u e d a t $148,000, e x v e s s e l , i n 1982. Shr imp f i s h e r m e n , t h e r e f o r e , i n c u r r e d l o s s e s e s t i m a t e d a t $370 ,300 i n l o s t p r o d u c t i v i t y and damage, wh i l e c r a b f i s h e r m e n i n c u r r e d l o s s e s e s t i m a t e d a t $580 ,000 i n l o s t gear a n d p r o d u c t i v i t y f o r 1982. As Measure A o f t h e p r o p o s e d amendment p r o v i d e s f o r e s t a b l i s h i n g e x c l u s i v e f i s h i n g a r e a s by t h e Comni t t e e w h i c h i s r e p r e s e n t a t i v e o f t h e f i s h e r m e n , i t i s e x p e c t e d t h a t t h e z o n i n g w i l l r e d u c e t h e s e gear a n d p r o d u c t i v i t y l o s s e s t o a n e g l i g i b l e l e v e l w h i l e i n s u r i n g each g r o u p ' s access t o t h e m o s t p r o d u c t i v e f i s h i n g a reas t h r o u g h o u t t h e s t o n e c r a b season, t o t he maximum e x t e n t p o s s i b l e . Some p r o d u c t i v i t y may b e l o s t t o each g r o u p as a r e s u l t o f z o n i n g due t o movement o f a n i m a l s i n t o c l o s e d a reas . However , o v e r t i m e , t h e s e l o s s e s s h o u l d be m i n i m i z e d t h r o u g h s t r u c t u r e o f t h e z o n i n g b y t h e Comni t t e e . T h i s movement o f t h e a n i m a l s a l s o h e l p s a l l e v i a t e such l o s s e s as t h e a n i m a l s w i l l e v e n t u a l l y move t h r o u g h t h e c l o s e d a reas . T h i s p o t e n t i a l l o s s o f p roduc t i v i t y c a n n o t b e e x p r e s s e d i n q u a n t i t a t i v e t e rms , b u t i s e x p e c t e d t o be much l e s s t h a n t h e v a l u e g a i n e d by r e s o l u t i o n o f t h e c o n f l i c t . S t e p ( 6 ) ( s e e Amendment, s u b s e c t i o n c ) o f t h e p r o c e d u r e s i m p l y a l l o w s f o r m o d i f i c a t i o n t o t h e Comni t t e e s t r u c t u r e b y t h e s t a t e o r t r a n s f e r o f i t s r e s p o n s i b i l i t y t o o t h e r agenc ies . S t e p ( 7 ) r e c o g n i z e s t h a t g e a r and f i s h i n g t e c h n i q u e m o d i f i c a t i o n s , when p e r f e c t e d , may o f f e r a s o l u t i o n f o r r e s o l v i n g T a b l e 1. Land ings o f Shr imp and S t o n e Crab i n Pounds i n t h e C o n f l i c t Area and S u r r o u n d i n g c o u n t i e s 1 P i ne l l as2 Pasco /C i t r u s 3 L e v y D i x i e I T a y l o r B a i t Shr imp 101,670 177,030 15,520 Shr imp 1,585,740 178,267 Stone C r a b 9,432 342,642 187,394 B a i t Shr imp 42,031 242,290 Shr imp 1,871,758 256,827 S tone C r a b 26,639 335,079 B a i t Shr imp 45,531 275,320 8,075 7,431 Shr imp 2,623,353 291 ,379 2 0 0 , 3 5 6 ~ Stone C r a b 73,784 481 ,865 124,828 176,560 1982 B a i t Shr imp 103,317 284,764 2,600 20,034 Shr imp 1 ,426,682 424,869 364, 2364 Stone C r a b 28,942 769,500 179,576 186,842 B a i t Shr imp N A 245,580 Shr imp N A 1,031,455 5 6 9 , 0 4 3 ~ S tone C r a b NA 1,000,485 106,700 ' l nc l udes l a n d i n g s o n l y t h r o u g h t h e f i s h houses m o n i t o r e d by WFS. An e s t i mated 20 p e r c e n t o f sh r imp l a n d i n g s and 25 p e r c e n t o f s t o n e c r a b l a n d i n g s bypass t h e s e f i s h houses. A l l w e i g h t s a r e l i v e w e i g h t , i.e., s h r i m p heads on, w h o l e c r a b w e i g h t . B a i t sh r imp and s tone c r a b l a n d i n g s a r e f r o m l o c a l c o a s t a l w a t e r s , whereas s h r i m p l a n d i n g s a r e p r i m a r i l y f r o m d i s t a n t w a t e r v e s s e l s o p e r a t i n g t h r o u g h o u t t h e G u l f o f Mex ico . C o n f l i c t area. N e g l i g i b l e amounts a r e l anded i n Hernando Coun ty s i n c e i t has no n a v i g a t i o n channe ls . Land ings combined f o r L e v y , D i x i e and T a y l o r C o u n t i e s t o i n s u r e c o n f i d e - / t i a l i t y . P r e l i m i n a r y d a t a , s u b j e c t t o r e v i s i o n . t h e c o n f l i c t i n c e r t a i n a r e a s w i t h o u t z o n i n g . FDNR i s i m p l e m e n t i n g r e s e a r c h t o e x p l o r e t h i s avenue f o r r e s o l u t i o n o f t h e c o n f l i c t . A SElS a n d SRlR w i l l be p r e p a r e d b e f o r e any such m o d i f i c a t i o n s a r e imp lemen ted u n d e r t h i s p r o c e du r e. S t e p ( 8 ) ( s e e Amendment, subsec t i o n c ) p r o v i d e s a u t h o r i t y f o r a d d r e s s i n g s i m i l a r c o n f l i c t s i n o t h e r a reas . T h i s p r o c e d u r e a l s o c a l l s f o r exac t spe c i f i c a t i o n o f a p roposed r u l e , p r e p a r a t i o n o f SElS a n d SRlR a n d h o l d i n g pub l i c hea r i ngs b e f o r e imp1 emen ta t i on . Unde r c e r t a i n c i r c u m s t a n c e s t h e p r o c e d u r e a l l o w s i m p l e m e n t a t i o n b y n o t i c e i n t h e F e d e r a l R e g i s t e r . b. Measu re B. P r o c e d u r e f o r t e r m i n a t i n g a c o n f l i c t o r p r e v e n t i n g a v i o l e n t c o n f r o n t a t i o n be tween s h r i m p and s t o n e c r a b f i s h e r m e n i n w a t e r s i n s h o r e o f 83OW. l o n g i t u d e o f f Pasco , He rnando and C i t r u s C o u n t i e s , F l o r i d a . T h i s measu re i s u n l i k e l y t o b e imp lemen ted u n l e s s c o n f l i c t r e s u l t i n g i n v i o l e n c e , l o s s o f l i f e o r p r o p e r t y i s o c c u r r i n g o r i s i m n i n e n t . The c o n f l i c t may a r i s e i n a r e a s r e g u l a t e d under t h e r e g u l a t o r y sys tem o f Measure ( A ) o r i n a r e a s o f f t h e t r i c o u n t y ' a r e a t h a t a r e u n r e g u l a t e d . ' ( T h e u r r e n t emergency - - a .ax r u l e p r o v i d e s no r e g u l a t i o n o f f Pasco Coun t y . ) The i m p a c t s o f t h e p r o v i s i o n s o f t h i s p r o c e d u r e r ange f r o m c o m p l e t e c l o s u r e o f t h e f i s h e r i e s f o r a p e r i o d o f s h o r t d u r a t i o n t o r e s t o r e o r d e r t o r e a l i g n m e n t o f t h e c o n f i g u r a t i o n o f f i s h i n g a reas i n t h e FCZ t o imp rove e n f o r c e a b i l i t y . The impac t s o f t h e p r o c e d u r e o n t h e p a r t i c i p a n t s , w h i c h a r e a n a l y z e d b e l o w , mus t be c o n t r a s t e d a g a i n s t v i o l e n c e , c i v i l d i s o r d e r and p o s s i b l e l o s s o f l i f e o r p r o p e r t y r e s u l t i n g f r o m t h e c o n f l i c t . The f i r s t a l t e r n a t i v e a c t i o n a v a i l a b l e t o t h e RD i s t o c l o s e t h e e n t i r e a r e a t o s h r i m p and s t o n e c r a b f i s h i n g , c o o p e r a t i v e l y w i t h t h e s t a t e , f o r a p e r i o d n o t t o exceed 3 0 days. The i m p a c t o f such a c l o s u r e w o u l d depend on t h e d u r a t i o n and t h e t i m e o f yea r t h e c l o s u r e was imp lemented . I f t h e c l o s u r e was imp1 emented f o r a f u l l 3 0 days i n November, t h e p e r i o d o f maximum p r o d u c t i o n f o r b o t h f i s h e r i e s ( T a b l e s 2, 3 a n d 4 ) , t h e i m p a c t s i n r educed c a t c h and l o s t v a l u e ( i n te rms o f 1982 v a l u e ) w o u l d be as f o l l o w s : ( 1 ) b a i t s h r i m p ( T a b l e 2 ) = l o s s o f 12.3 p e r c e n t o f annua l c a t c h ( 2 ) c m e r c i a l s h r i m p ( T a b l e 3 ) = l o s s o f 15.8 p e r c e n t o f a n n u a l c a t c h ( 3 ) s t o n e c r a b ( T a b l e 4 ) = l o s s o f 22.0 p e r c e n t o f a n n u a l c a t c h ( 4 ) l o s s i n e x v e s s e l v a l u e o f $64K ( b a i t ) and $77K ( s h r i m p ) a n d $233K ( s t o n e c r a b ) = $374K ( t o t a l ) . The c l o . su re , i f imp lemented , l i k e l y w o u l d b e t e r m i n a t e d as s o o n as o r d e r c o u l d b e r e s t o r e d and p r o b a b l y w i t h i n 1 0 t o 1 5 days. Under t h i s c i r cums tance a c l o s u r e imp lemen ted i n November w o u l d r e s u l t i n a l o s s o f $47K t o $70K t o s h r i m p f i s h e r m e n w h i c h may be p a r t i a l l y o f f s e t by t r a n s f e r r i n g t h e i r f i s h i n g a c t i v i t y t o o t h e r u n r e g u l a t e d a r e a s and w o u l d r e s u l t i n a l o s s o f $78K t o $116K t o c r a b f i s h e r m e n who w o u l d have d i f f i c u l t y m o v i n g t h e i r t r a p s t o o f f s e t t h e l o s s d u r i n g t h e 10- t o 15-day p e r i o d . I f a c l o s u r e o f :'le e n t i r e a r e a was imp lemen ted f o r a 30-day o r 15-day o r C Y h N h In - In c; '9 g 'I d Y In C * 'I In 0 1 CO c '3 B s = 8 ; g = 'a- i m r- 4 b. 7 C b. iT 2 'a- W c $! '9 z 7 In- 0 - 4 '9 d '4 i ? C c 4 r- C G Z 9; 'V * 2 C CV - . VI t o . L - - - - u C C C C o o o o w " " . . 0 u u u c c " . . .- 0 u u L 4 2 x 2 Table 3. MDnthly Catch ('thousands of pounds) and Value (thousands of dol lars) o f C m r c i a l Shrinp Landed in PascoICitrus Counties, Flor ida, [Iur ing 1979 Through 1982 and Percent of Catch Landed by Month Year ICa t egor y JN FEB M4R APR M Y JLN JU. f f i SEP (33 N Y DEC T(Xk VPLLE 1979Neight 6.2 10.1 9.4 14.7 12.9 10.5 5.6 34.5 20.1 11.4 26.0 16.6 1783.0 $274 Average1 I (Percent) w (2.8) (9.0) (11.8) (7.5) (7.3) (3.1) (2.9) (7.6) (15.1) (9.5) (15.8) (8.5) I PEWIM OF CATCH CLRIffi ST(3\E (RPB S E W N (OCT - MW) = 72.2 percent1 PDMNT OF CATCH CLRIffi (LOSED YASON (JLN - SEP ) = 28.7 Percent Difference f r m 100 percent h e to rounding errors Table 4. Monthly Catch (thousands of pounds, l i v e weight1) and Value (thousands of do l lars) o f Stone Crab landed i n Pasco/Citrus Count i es, F lor ida, Dur i ng 1980 Through 1982 and Percent of Catch Landed Monthly M S S E L Year /Ca t egor y JPrJ A B M4R APR M Y JWISEP a3 NXI DEC SrrrA VALE M S records landings as l i v e weight even though only claws are landed 10-day p e r i o d d u r i n g J a n u a r y when c a t c h e s i n b o t h f i s h e r i e s a r e lower , t h e comb ined i m p a c t ( i n t e r m s o f 1 9 8 2 e x v e s s e l v a l u e ) w o u l d be $164K, $82K o r $55K, r e s p e c t i v e l y f o r each p e r i o d . Thus t h e impac t o f such a c o m p l e t e c l o s u r e w o u l d r a n g e f r o m $374K maximum ( f o r 3 0 days i n November) t o a low o f $50K o r l e s s ( f o r 1 0 days d u r i n g o t h e r m o n t h s ) . The r ange o f impac t s i s q u i t e b r o a d s i n c e c l o s u r e o f o n l y a p o r t i o n o f t h e e n t i r e a r e a may be r e q u i r e d t o r e s t o r e o r d e r i n t h e f i s h e r y , b u t t h e i m p a c t i s bounded by t h e economic maximum o f a p p r o x i m a t e l y $400K i n l o s t e x v e s s e l v a l u e w h i c h may be , p a r t i a l l y o f f s e t by h a r v e s t i n g t h e a n i m a l s l a t e r i n t h e year . The second a l t e r n a t i v e a c t i o n a v a i l a b l e t o t h e RD p r o v i d e s f o r c l o s u r e o n l y i n t h e FCZ and t h e i m p a c t o f s u c h a c t i o n i s mo re d i f f i c u l t t o q u a n t i f y . Bas i c a l l y t h e FCZ makes up a p p r o x i m a t e l y 3 1 p e r c e n t o f t h e e n t i r e r e g u l a t o r y a r e a , so c l o s u r e o f t h e FCZ w o u l d have c o n s i d e r a b l y l e s s i m p a c t t h a n f o r t h e e n t i r e a rea . The a c t u a l impac t w o u l d be dependen t o n t h e p o r t i o n o f t h e e x c l u s i v e f i s h i n g a r e a s e s t a b l i s h e d under Measu re ( A ) f o r each f i s h e r y t h a t was i n t h e FCZ. Aga i n,) p a r t o f t h e impac t may be s f f se-y e a c h g roup t ran -? f e r r i n g p a r t o f t h e i r f i s h i n g e f f o r t t o o t h e r u n r e g u l a t e d a reas . T h i s t r a n s f e r o f e f f o r t w o u l d be mo re d i f f i c u l t f o r c r a b f i s h e r m e n w i t h t r a p s i n t h e FCZ. The t r a n s f e r o f t h i s e f f o r t t o o t h e r a r e a s may a d v e r s e l y i m p a c t t h e c a t c h p e r u n i t e f f o r t o f f i s h e r m e n a l r e a d y u t i l i z i n g t h e s e a reas . The t h i r d a l t e r n a t i v e a c t i o n p r o v i d e s f o r z o n i n g t h e r e g u l a t e d a r e a i n t o two o r m o r e zones i n a n eas t -wes t c o n f i g u r a t i o n , a s s u r i n g t h a t b o t h g roups h a v e b o t h i n s h o r e and o f f s h o r e f i s h i n g a reas . Such zones may be s e p a r a t e d b y b u f f e r zones i n w h i c h s h r i m p i n g and c r a b b i n g a r e p r o h i b i t e d . T h i s a l t e r n a t i v e i s l e s s d r a s t i c i n impac t t h a n t h e c l o s u r e s , b u t has t h e same i m p a c t f o r t e n days ( t h e p e r i o d a l lowed f o r movement o f t r a p s ) . The measure a l lows f i s h i n g t o c o n t i n u e l e s s e n i n g t h e o v e r a l l i m p a c t , b u t t h e c o n f i g u r a t i o n o f t h e s e a r e a s may n o t c o n f o r m t o movement p a t t e r n s o f t h e s h r i m p and c r a b s and may t h e r e f o r e i m p a c t p r o d u c t i v i t y . The f i n a l a l t e r n a t i v e f o r a c t i o n b y t h e RD p r o v i d e s t h a t t h e c o n f i g u r a t i o n o f f i s h i n g a r e a s e s t a b l i s h e d i n t h e FCZ may be m o d i f i e d t o i m p r o v e e n f o r c e a b i l i t y . T h i s a l t e r n a t i v e has t h e l e a s t impac t b u t w i l l r e q u i r e c e r t a i n l o c a l i z e d a r e a s be c l o s e d f o r t e n days t o a l l o w c r a b t r a p s t o be moved. c. The r e g u l a t i o n change t o p r o h i b i t p l a c e m e n t o f a r t i c l e s w i t h i n t e n t t o i n t e r f e r e w i t h f i s h i n g o r t o u t i l i z e f i s h i n g gear t o i n t e n t i o n a l l y o b s t r u c t o r damage t h e gear o f a n o t h e r e s s e n t i a l l y imp roves e n f o r c e a b i l i t y o f t h e c o n f l i c t p r o v i s i o n s o f b o t h FMPs and a c t s as a d e t e r e n t t o a c t i o n s w h i c h may r e s u l t i n c o n f l i c t . The p r o v i s i o n has no i m p a c t u n l e s s o t h e r p r o v i s i o n s o f t h e FMPs a r e v i o l a t e d . The r e g u l a t i o n change w h i c h a l l ows e n f o r c e m e n t o f f i c e r s t o d i s p o s e o f t r a p s l e f t i n a r e a s c l o s e d t o c r a b b i n g has no i m p a c t u n l e s s such t r a p s a r e i l l e g a l l y p l a c e d i n c l o s e d a reas . The S e c r e t a r y and e n f o r c e m e n t o f f i c e r s m a i n t a i n d i s c r e t i o n o v e r d i s p o s a l o f such t r a p s and may m o d e r a t e t h e i m p a c t i f t h e t r a p s w e r e a c c i d e n t a l l y p l a c e d i n s u c h a reas o r moved i n t o such a r e a s b y w e a t h e r c o n d i t ions. d. The emergency z o n i n g r u l e w h i c h was p r o m u l g a t e d A p r i l 6 , 1983 ( 4 8 FR 1 4 9 0 3 ) i s i n c l u d e d i n t h e r e g u l a t i o n s as a n i n t e r i m r u l e w h i c h w i l l r e m a i n i n e f f e c t u n t i l m o d i f i e d u n d e r t h e p r o c e d u r e s o f Measu re A. T h i s r u l e i s i n c l u d e d o n l y t o e n s u r e t h a t a r e g u l a t i o n w i l l be i n e f f e c t a t t h e b e g i n n i n g o f t h e 1984 s t o n e c r a b season ( O c t o b e r 5 ) . T h i s r u l e was j u d g e d by t h e C o u n c i l t o be t h e m o s t a c c e p t a b l e o f t h e a l t e r n a t i v e emergency a c t i o n s . D u r i n g 1983 t h e c o n f l i c t a r e a was r e g u l a t e d under t w o s e p a r a t e emergency r u l e s p r o m u l g a t e d by NvlFS and b y s i m i l a r r u l e s p r o m u l g a t e d b y t h e S t a t e o f F l o r i d a . These r u l e s w e r e i n e f f e c t f o r 5 6 p e r c e n t o f t h e s t o n e c r a b s e a s o n i n 1983. D u r i n g 1983 c m e r c i a l s h r i m p l a n d i n g s i n t h e t r i c o u n t y p o r t s i n c r e a s e d by 1 4 3 p e r c e n t and s t o n e c r a b l a n d i n g s b y 3 0 p e r c e n t o v e r l a n d i n g s f o r 1982 ( T a b l e 1 ) s u g g e s t i n g t h a t r e g u l a t i o n o f t h e f i s h e r y h a d a b e n e f i c i a 1 impac t . S i m i l a r l y , s h r i m p l a n d i n g s i n Levy , D i x i e and T a y l o r c o u n t i e s a l s o i n c r e a s e d by 56 p e r c e n t o v e r t h a t f o r 1982 , s u g g e s t i n g t h a t t hese f i s h e r m e n , many o f whom f i s h o f f t h e t r i c o u n t y a r e a , we re a l s o b e n e f i t e d and c e r t a i n l y w e r e n o t adve , rse ly impac ted . T h i s r e p r e z e n t s s t h e r s i g n i f i c a n t - i nc reases c o n s i d e r i n g F l o r i d a l a n d i n g s o f s h r i m p i n c r e a s e d b y o n l y 1 4 p e r - iX c e n t b e t w e e n 1982 and 1983. e. G e n e r a l . The r e g u l a t o r y i m p a c t o f t h e p r o p o s e d amendment w o u l d a f f e c t 2 2 2 s h r i m p f i s h i n g c r a f t and 7 0 s t o n e c r a b f i s h i n g c r a f t . The S m a l l B u s i n e s s A d m i n i s t r a t i o n (SBA) d e f i n e s a smal l b u s i n e s s i n t h e c o m n e r c i a l f i s h i n g a c t i v i t y , c l a s s i f i e d a n d f ound i n t h e S t a n d a r d I n d u s t r i a l C l a s s i f i c a t i o n Code, M a j o r G r o u p , H u n t i n g , F i s h i n g and T r a p p i n g ( S I C 0 9 ) , as a f i r m w i t h r e c e i p t s up t o $2.0 m i l l i o n a n n u a l l y . P r o b a b l y a l l o f t h e p a r t i c i p a n t s i n t h e commerc i a l f i s h e r y ( s h r i m p e r s and s t o n e c r a b b e r s ) q u a l i f y as s m a l l b u s i nesses unde r t h e S m a l l B u s i n e s s A c t . I t w o u l d a f f e c t a p p r o x i m a t e l y 540 s h r i m p f i s h e r m e n , 210 c r a b f i s h e r m e n and 1 2 l o c a l s e a f o o d d e a l e r s . The o v e r a l l i m p a c t o n t h e s e e n t i t i e s i s b e n e f i c i a l and s h o u l d r e s u l t i n a n e s t i m a t e d g a i n , t h r o u g h s a v i n g s o f l o s t p r o d u c t i v i t y and gea r l o s s and damage, a p p r o a c h i n g $950,000 a n n u a l l y , c o n t r a s t e d a g a i n s t a p o t e n t i a l a n d p r o b a b l y t e m p o r a r y l o s s o f some i n d i v i d u a l p r o d u c t i v i t y u n t i l t h e f i s h i n g a reas a r e a d j u s t e d t o i n s u r e o p t imum p r o d u c t i v i t y . No c o s t and e a r n i n g s d a t a a r e a v a i l a b l e f o r t h i s f i s h e r y . Comni tment o f F e d e r a l r e s o u r c e s w i l l be r e d u c e d by p r o v i d i n g f o r an o r d e r l y f i s h e r y . M o s t e n f o r c e m e n t b u r d e n s w i l l be b o r n e b y t h e S t a t e o f F l o r i d a u n d e r t h e c o o p e r a t i v e e n f o r c e m e n t agreement . These e n f o r c e m e n t bu rdens s h o u l d d e c l i n e w i t h t i m e as t h e r e g u l a t o r y s y s t e m g a i n s accep tance . The e s t i m a t e d c o s t t o t h e C o u n c i l i n i m p l e m e n t i n g t h i s amendment i s $25 ,670 w h i c h i n c i u d e s t h e $10 ,840 c o s t o f p r e v i o u s d r a f t amendment w h i c h was j u d g e d t o b e i n a d e q u a t e . C u r r e n t e s t i m a t e d c o s t s i n c l u d e t h o s e f o r p r e p a r i n g o f documents ( $ 1 , 670 ) , h o l d i n g h e a r i n g s ( $ 2 , 6 0 0 ) ; and h o l d i n g r e v i e w s by SSC, AP a n d C o u n c i l ( $ 1 0 , 5 6 0 ) . ALTERNATIVES TO THE PROPOSED ACTION 1. No A c t i o n : T h i s a l t e r n a t i v e w o u l d i g n o r e t h e v e r y d i s t i n c t p r o b a b i l i t y o f '. t h e o c c u r r e n c e o f s e r i o u s and v i o l e n t c o n f l i c t b e t w e e n s h r i m p a n d s t o n e c r a b ,, f i s h e r m e n . Numerous g e a r c o n f l i c t s have o c c u r r e d i n t h e f i s h e r y s i n c e t h e l a t e 1970s. The f i s h e r m e n t h e m s e l v e s , t h e S t a t e , t h e C o u n c i l a n d t he NMFS, have a l l t a k e n a c t i o n s t o a t t e m p t t o r e s o l v e t h e c o n f l i c t s i t u a t i o n . W F S imp lemen ted emergency r e g u l a t i o n s i n t h e 1982-1983 a n d t h e 1983-1984 seasons t o r e g u l a t e t h e c o n f l i c t s i t u a t i o n . The F l o r i d a G o v e r n o r and C a b i n e t a l s o imp1 emented erne rgency r e g u l a t i o n f o r 1983-1 984 season. The S t a t e has t a k e n r e s p o n s i b l e a c t i o n by e s t a b l i s h i n g t h e Comni t t e e , com p o s e d o f r e p r e s e n t a t i v e s o f t h e two i n d u s t r i e s , and h a s c h a r g e d t h e Comni t t e e w i t h d e v e l o p i n g e x c l u s i v e f i s h i n g a reas f o r s h r i m p i ng and c r a b b i n g t o r e s o l v e t h e c o n f l i c t i n w a t e r s unde r S t a t e j u r i s d i c t i o n i n t h e most e q u i t a b l e manner . The Comni t t e e may recomnend changes i n t h e c o n f i g u r a t i o n o f t h e f i s h i n g a reas a t any t i m e t o p r o v i d e f o r o p t i m u m f i s h i n g b y t h e t w o i n d u s t r i e s . To t a k e no a c t i o n l e a v e s t h e F e d e r a l r e s p o n s e t o t h i s c o n f l i c t i n t h e mode o f r e s p o n d i n g t o emergency s i t u a t i o n s , r e t a i n s a n i n f l e x i b l e r e g u l a t o r y s y s t e m w h i c h i s n o t r e s p o n s i v e t o changes i n t h e f i s h e r y and f a i l s t o a c h i e v e t h e o b j e c t i v e s o f t h e FMPs and o p t i m u m y i e l d f r o m t h e f i s h e r i e s . - 7% To t a k e no a c t i o n w o u l d ' i g n o r e t h e economic benef i '2 ls t o % k a i ned by r e d u c - .sa. t i o n o f gea r damage and gear r e p 1 acement c o s t and t h r o u g h i n c r e a s e d p r o d u c t i v i t y t h a t i s c u r r e n t l y l o s t due t o t h e gear c o n f l i c t . These bene f i t s r e p r e s e n t a n annua l g a i n as h i g h as $950,000. 2. C l o s u r e o f t h e E n t i r e A r e a : T h i s a l t e r n a t i v e i s p r o v i d e d f o r i n t h e p r o p o s e d a c t i o n i n t h e e v e n t o f s e r i o u s c o n f l i c t o f a v i o l e n t n a t u r e . I t was n o t g i v e n s e r i o u s c o n s i d e r a t i o n as a s o l u t i o n t o t h e c o n f l i c t , a l t h o u g h i t was s u g g e s t e d b y some f i she rmen . The economic and s o c i a l consequences o f such a n a1 t e r n a t i v e a r e e x c e s s i v e as i n d i c a t e d by t h e i n f o r m a t i o n i n T a b l e s 2 t h r o u g h 4 a n d t h e A n a l y s i s o f P r o p o s e d A c t i o n s f o r Measure ( B ) . 3. A S i n g l e S t a t i c Z o n i n g C o n f i g u r a t i o n : A l t h o u g h a s i n g l e z o n i n g sys tem was i n s t i t u t e d t h r o u g h t h e FMPs f o r t h e c o n f l i c t a r e a o f f s o u t h w e s t F l o r i d a i n 1979 , such a s i m p l e c o n f i g u r a t i o n i s no t c u r r e n t l y p r a c t i c a l o f f Pasco, He rnando and C i t r u s C o u n t i e s . I n s o u t h w e s t F l o r i d a t h e a r e a c l o s e d t o t r a w l i n g was p r e d o m i n a n t l y f i s h e d b y c r a b b e r s and t r a w l i n g a r e a s c o n s t i t u t e d o n l y abou t f i v e p e r c e n t o f t h e r e g u l a t e d a r e a , t h e r e s t b e i n g t o o rough t o t r a w l . T h i s i s no t t h e case i n t h e t r i c o u n t y a r e a as a h i g h p e r c e n t a g e o f t h e b o t t o m s a r e t r a w l a b l e and t h e p r i m e f i s h i n g a r e a s o f t h e two f i s h e r i e s c o i n c i d e i n space and t i m e (Amendment, F i g u r e s 1 and 2 ) . I n o r d e r t o a s s u r e op t imum p r o d u c t i v i t y f o r t h e two f i s h e r i e s a more f l e x i b l e sys tem, w h i c h a l lows i n s e a s o n a d j u s t m e n t s t o compensate f o r chang i ng m i g r a t o r y p a t t e r n s , appea rs necessa ry . The S t a t e has e s t a b l i s h e d such a sys tem f o r i t s w a t e r s w h i c h c o n s t i t u t e t h e l a r g e s t p o r t i o n o f t h e c o n f l i c t a rea . A , s t a t i c F e d e r a l s y s t e m may i m p a c t t h e . e f f e c t i v e n e s s o f t h e S t a t e s y s t e m and I i k e l y r e d u c e op t imum p r o d u c t i v i t y o f t h e f i s h e r m e n . O v e r - t i m e u n d e r t h e p r o p o s e d a l t e r n a t i v e i t i s q u i t e l i k e l y t h a t a s i n g l e , e q u i t a b l e z o n i n g s y s t e m w i l l be d e v i s e d ; however , m o s t l i k e l y , i t w i l I i n c l u d e many a r e a s i n w h i c h access b y each i n d u s t r y i s a l t e r n a t e d by t i m e o f yea r . A s i n g l e , s t a t i c s e t o f f i s h i n g a r e a s has o n l y t h e a d v a n t a g e o f r educed e n f o r c e m e n t c o s t ; however , t h i s i s u n l i k e l y t o be a s i g n i f i c a n t a d v a n t a g e and l i k e l y w o u l d r e s u l t i n a n e g a t i v e i m p a c t o n t h e p r o d u c t i v i t y o f t h e f i s h e r m e n . Such s t a t i c f i s h i n g a r e a s a r e p r o v i d e d f o r i n Measu re ( B ) b u t o n l y f o r t h e p u r p o s e o f r e s t o r i n g o r d e r i n t h e e v e n t o f a s e r i o u s o r v i o l e n t c o n f l i c t . 4. I n c l u d e I n t h e P roposed A c t i o n R e g u l a t i o n o f t h e W a t e r s O f f O t h e r F l o r i d a C o u n t i e s Where Sh r imp and S t o n e C r a b F i s h i n g Occur . T h i s a l t e r n a t i v e was s u g g e s t e d by some f i she rmen . The S t a t e o f F l o r i d a c o n s i d e r e d t h i s o p t i o n and c o n c l u d e d t h r o u g h i t s l e g i s l a t i v e p r o c e s s t h a t t h e p r i n c i p a l c o n f l i c t was o f f t h e t r i c o u n t y a rea . I t p r o v i d e d a s t a t u t o r y s y s t e m f o r r e s o l u t i o n o f t h e c o n f l i c t i n t h i s a r e a t h r o u g h e s t a b l i s h n e n t o f t h e Comni t t .ee . A l t h o u g h gea r c o n f l i c t s a n d c o m p e t i t i o n f o r f i s h i n g a r e a do e x i s t i n o t h e r a r e a s t h e y w e r e j udged t o be o f l e s s s e v e r i t y a t t h e p r e s e n t t i m e . T h i s c o n c l u s i o n i s s u p p o r t e d ,by l a n d i n g i n f o r m a t i o n ( T a h l e l ) & i . c h i s r e f l e c t i v e 7d o f number o f p a r t i c i p a n t s i n each f i s h e r y . B o t h S t a t e and F e d e r a l r e g u l a - .m. t o r y a u t h o r i t i e s a r e r e l u c t a n t t o impose s u c h r e g u l a t i o n b e f o r e i t i s r e q u i r e d . S t e p ( 8 ) o f Measu re ( A ) does, however , p r o v i d e f o r r e g u l a t i o n i n o t h e r a r e a s s h o u l d i t be r e q u i r e d . Under t h i s p r o v i s i o n a s l o w e r , m e t h o d i c a l p r o c e s s o f i m p l e m e n t i n g such r e g u l a t i o n ; i n c l u d i n g s p e c i f i c a t i o n o f p r o p o s e d z o n i n g , e v a l u a t i o n o f i m p a c t s and pub1 i c h e a r i n g s ; i s p r o v i d e d f o r t o p r o t e c t t h e pub l i c i n t e r e s t . E N V I R M E N T A L CONSEQUENCES 1 The p r o p o s e d a c t i o n has no i m p a c t o n t h e f i s h e r y r e s o u r c e s o r p h y s i c a l e n v i r o n ment . The economic and s o c i a l i m p a c t s a r e g e n e r a l l y b e n e f i c i a l . T h e p r o p o s e d a c t i o n r e p r e s e n t s a s o c i a l l y a c c e p t a b l e compromise t h a t w i l l c o n t r i b u t e t o t h e p e a c e f u l c o e x i s t e n c e o f two d i v e r g e n t f a c t i o n s c o m p e t i n g f o r r e s o u r c e s i n t h e same g e o g r a p h i c a l a r e a w i t h i ncompat i b l e f i s h i ng gear . Economic consequences w i l l a l s o be b e n e f i c i a l t o b o t h g r o u p s as s a v i n g s and e a r n i n g s w i l l b e r e a l i z e d f r a n a c o n s i d e r a b l e r e d u c t i o n i n gea r damage and l o s s and i n c r e a s e d h a r v e s t r e s u l t i n g f r o m c o n v e r s i o n o f l o s t f i s h i n g t i m e and gear t o p r o d u c t i v e e f f o r t . S p e c i f i c economic and s o c i a l i m p a c t s a r e d i s c u s s e d under A n a l y s i s o f P r o p o s e d A c t ions . The p r o p o s e d a c t i o n has no i m p a c t o n t h r e a t e n e d o r endange red s p e c i e s . The s p e c i a l i z e d r i g i d f r ame r o l l e r t r a w l s a r e i n c a p a b l e o f c a p t u r i n g t u r t l e s o r o t h e r t h r e a t e n e d o r endange red s p e c i e s , due t o t h e v e r t i c a l b a r s s h i e l d i n g t h e m o u t h o f t h e t r a w l . The t r a p s a r e l i k e w i s e i n c a p a b l e o f c a p t u r i n g t h e s e a n i ma l s . S e c t i o n 7 C o n s u l t a t i o n s were h e l d f o r b o t h FMPs w i t h a "no j e o p a r d y o p i n i o n l 1 . b e i ng r e n d e r e d f o r s i m i l a r p r o v i s i o n s . C o n c l u s i o n s O M i t i g a t i n g Measu res R e l a t e d t o t h e P roposed A c t i o n O U n a v o i d a b l e A d v e r s e E f f e c t s None O R e l a t i o n s h i p Be tween L o c a l , S h o r t - t e r m U s e r s o f t h e R e s o u r c e and Enhancement o f Long - t e rm P r o d u c t i v i t y Use o f t h e r e s o u r c e s a r e a l m o s t e n t i r e l y l o c a l and w i l l be enhanced by t h e p r o p o s e d a c t i o n . Long - t e rm p r o d u c t i v i t y w i l l n o t b e a l t e r e d . O I r r e v e r s i b l e o r i r r e t r i e v a b l e commitment o f r e s o u r c e The p r o p o s e d a c t i o n s h o u l d d i m i n i s h l o s s e s r e l a t e d t o gear a n d e f f o r t a n d i n c r e a s e f i s h i n g p r o d u c t i v i t y . Comni tment o f a d d i t i o n a l s t a t e a n d f e d e r a l r e s o u r c e s s h o u l d be n e g l i g i b l e as t h i s r e p r e s e n t s a j o i n t e f f o r t be tween t h e s t a t e and f e d e r a l g o v e r r m e n t s , a n d l aw e n f o r c e m e n t a c t i v i t i e s w i l l be con t i nued unde r a n e x i s t i n g c o o p e r a t i v e agreement . - =. - -- 7e *a Recomnendat i o n H a v i n g r e v i e w e d t h e e n v i r o r m e n t a l assessment and t h e a v a i l a b l e i n f o r m a t i o n r e l a t i n g t o t h e p r o p o s e d a c t i o n , I h a v e d e t e r m i n e d t h a t t h e r e w i l l b e no s i g n i f i c a n t e n v i r o r m e n t a l impac t r e s u l t i n g f r o m t h e p r o p o s e d a c t ion. App roved : A s s i s t a n t A d m i n i s t r a t o r f o r F i s h e r i e s D a t e Bi l l ing Code 3510-22 DEPARTMENT OF COMMERCE National Oceanic and Atmospheric Admin is t ra t ion 50 CFR PARTS 654 and 658 [Docket No. 1 Stone Crab Fishery and Shrimp Fishery o f the Gu l f o f Mexico AGENCY: Nat ional Oceanic and Atmospheric Admin is t ra t ion ( N b A A ) ,=-C%mmerce. - -- iw. ACTION: Proposed rule. SUMMARY: NOAA issues a proposed ru le to implement an amendment t o the F ishery Management Plans (FMPs) f o r the Stone Crab Fishery and Shrimp Fishery o f the G u l f o f Mexico and requests comments o n the FMP amendment and implementing regulations. This proposed amendment provides f o r ( 1 ) opening and closing spec i f ic f i sh ing areas i n the f ishery conservat ion zone (FCZ) o f f Pasco, Hernando, and C i t rus Counties, F lor ida, to stone crab or shrimp f ish ing concurrent ly w i t h such act ions by the State o f F l o r i da w i t h i n i t s ju r isd ic t ion; ( 2 ) modi fy ing the speci f ic f ish ing areas i n the FCZ speci f ied i n ( 1 ) above; ( 3 ) p roh ib i t i on o f the in tent ional placement o f a r t i c l es i n the FCZ to i n t e r f e r e wi th f i sh i ng o r to u t i l i ze f ishing gear to intent ional ly damage the gear o f another; and ( 4 ) disposal o f stone crab traps found i n areas closed t o c rab fishing. The in ten t o f these regulations i s t o a l low order ly conduct o f the two f isher ies and avoid serious c o n f l i c t between stone c rab and shrimp fishermen. DATES: Comments o n the FMP amendment and proposed regulat ions must be received i n w r i t i ng on or be fo re ( I nse r t date 45 days a f t e r date o f publ icat ion i n the FEDERAL REGISTER). ADDRESS: Comments and requests f o r copies o f the amendment to the FMPs and the supplemental regulatory impact r e v i e w l i n i t i a l regulatory f l e x i b i l i t y analysis and the proposed regulat ions should be sent to Donald W. Geagan, Southeast Region, Nat ional Mar ine F isher ies Service, 9450 Koger Boulevard, St. Petersburg, F lo r ida , 33702. FOR FURTHER INFORMATION ,CONTACT: Donald W. Geagan, ( 8 1 3 ) 8~93.3722. SUPPLEMENTARY INFORMATION : Background <. The Fishery Management P lan f o r the Stone Crab Fishery o f the Gu l f o f Mexico (Stone -*; Crab FMP) prepared by the G u l f o f Mexico Fishery Management Counci l (Counci l ) was approved by the Assistant Admin is t ra tor f o r Fisheries, NOAA, (Ass is tant Adm in i s t r a t o r ) o n I March 1 9 , 1979, and implemented by regulat ions publ ished on September 1 4 , 1979 ( 4 4 FR 53520 ) , under the author i ty o f the Magnuson Fishery Conservat ion and Management A c t as amended (Magnuson A c t ) . The Fishery Management P l an f o r t he Shrimp Fishery o f t he Gu l f o f Mexico (Shr imp FMP) , prepared by the Council, was approved by the Assistant Admin is t ra to r o n November 7, 1980 , and implemented by regulat ions published o n May 20, 1981 ( 4 6 FR 2 7 4 9 4 ) . Emergency regulat ions amending the Stone Crab and Shr imp FMPs under sect ion 305 (e ) ( 2 ) o f the Magnuson Ac t were published o n A p r i l 6 , 1983 ( 4 8 FR 1 4 9 0 3 ) , October 1 1 , 1983 ( 4 8 FR 46057) , and December 21, 1983 ( 4 8 FR 56394) . These emergency regulat ions were implemented t o resolve cont inuing gear c o n f l i c t s between shrimp and stone crab f ishermen i n the FCZ o f f the Pasco, Hernando and C i t r u s Counties, F lor ida, area dur ing the 1983 and 1984 stone crab seasons. The proposed rulemaking consists o f two procedures which establish exclusive f i sh i ng areas f o r shrimp t raw l ing or f o r crab f i sh ing i n the FCZ and prov ide a f l ex ib le system w i t h rap id response t ime f o r addressing the con f l i c t i n the t r icounty a r e a i n fu tu re years through ru le- re la ted notice i n the FEDERAL REGISTER. I n addi t ion t o these procedures, the rulemaking authorizes the Secretary to resolve con f l i c t s i n o t h e r areas when they occur - & . 7* through regulatory amendment, dispose o f t raps i n areas closed t o stone c r a b f ish ing and 'n i% prohib i ts placement o f ar t ic les i n the FCZ wi th the in tent t o in te r fe re w i t h f i sh ing by others. Gear con f l i c t s between shrimp and stone crab f ishermen have occurred in te rmi t ten t l y dur ing the past six years i n an area west o f Pasco, Hernando and Ci t rus Count ies, F lor ida. Recent ly, these con f l i c t s have increased i n number and severi ty, resul t ing i n a s ign i f i can t d isrupt ion i n the peaceful and order ly conduct o f bo th f isheries. The a f f e c t e d f i shermen have attempted unsuccessfully t o reduce these con f l i c t s . The State o f F l o r i da (State) has implemented regulat ions to address the problem. However, these have on ly been p a r t i a l l y successful and do not resolve to con f l i c t s i n the FCZ. Dur ing the 1982-1983 season the Nat iona l Mar ine Fisheries Service (NMFS) documented incidents where barbed wire secured to c inder blocks o r stone c rab traps had been p laced i n the c o n f l i c t area. Shrimp t raw l ing gear encountering the barbed wire was damaged o r destroyed. Damage and in jury have occurred to f i sh ing gear, to vessels, and to individuals at tempting to disentangle the barbed wire. P r i o r to implementat ion o f emergency regulat ions dur ing t he 1982-1 983 fishing yea r , a l ternat ive actions were considered by NMFS f o r reso lu t ion o f th is escalat ing con f l i c t . Ear l i e r testimony by stone crab and shr imp f ishermen a t pub l i c hearings and meet ings conducted by the Counci l indicated an acceptable reso lu t ion was a minor westward extens ion o f State-implemented area closures in to the FCZ adjacent to C i t r u s County. Though such amendments to the FMPs were considered by the Council, the area a f fec ted by the amendments does not now include a l l o f the locat ions t o which t he con f l i c t s have spread. There i s concern among fishermen f r om both groups that t he condit ions which resu l ted i n violence last season w i l l develop and escalate a t a m u c r mar-apid ra te i n coming seasons. A f t e r a number o f unsuccessful at tempts by an advisory panel o f the Counci l to formulate a so lu t ion to th is s i tuat ion, the State established by statute a Pasco, Hernando and C i t rus County Shrimping and Stone Crabbing Advisory Commit tee (Commi t tee ) . The Committee consists o f representatives o f the shrimp and stone c r a b f ishermen o f the th ree county area and i s charged w i th developing f ishing zones i n the State wa te rs (about two th i rds o f the to ta l area involved) t o resolve con f l i c t s i n th i s area. Such proposed zoning is submitted t o the State f o r promulgat ion as ru le . The S ta te may adopt o r re jec t the proposed zoning p l a n but may not modi fy it. I f the proposed zon ing i s re jected, the Committee may submit a l ternat ive zoning proposals to the State. The proposed amendment w i l l u t i l i ze as i t s basis th i s same system by extending t o the Committee the r i gh t to propose zoning o f Federal waters (ou t to 83OW. longi tude) ad jacent t o the State zones. The use o f th is system w i l l achieve the fo l lowing admin is t ra t ive advantages: ( 1 ) a l low the Committee t o consider zoning o f the en t i r e con f l i c t area regardless o f whether the waters are State o r Federal , thereby, providing the f l e x i b i l i t y to achieve more equable compromise solut ions through zoning; ( 2 ) provide the Council w i th suggested zoning o f Federal waters that i s general ly acceptable t o the f ishermen involved; ( 3 ) provide f o r publ ic review and comment on the proposed solut ions through State hear ings and the correspondence submitted by the publ ic, the resul ts o f which w i l l be available for Council review; ( 4 ) through State approval ( o r disapproval) and recommendations o n the proposed zoning, prov ide the Counci l w i t h ind icat ion o f the S t a t e ' s pos i t ion o n the c o n f l i c t issue af fect ing i t s c i t izens; ( 5 ) provide the maximum degree o f f l e x i b i l i t y f o r mod i f i ca t i on o f the zoning, annually o r on a n in-season basis, t o accommodate changes i n the f i she r y - & - - -- & *%x whi le mainta in ing as i t s basis the agreement o f the representat ives o f the two fisheries; and ( 6 ) resu l t i n considerable savings to the Council and Federal government i n t ime and funding. Through the proposed amendment the Regional D i r ec to r , a f t e r consult ing the Counc i l , may implement by not ice i n the FEDERAL REGISTER o r re ject t he recommendation o f the Committee i f the recommendations violate the provisions o f the Magnuson A c t , provide for inadequate oppor tun i ty for publ ic comment, o r are inequitable to t he fishermen. The Counc i l and Regional D i r e c t o r may also take independent a c t i o n to resolve the c o n f l i c t i n Fede ra l waters i f the State ent i t ies fa i l s to ac t expedit iously, i f an implemented system f a i l to prevent con f l i c t , o r f o r other jus t i f iab le reasons, including inequi ty i n proposed zoning o f the FCZ. Special provisions o f these procedures provide t he Secretary o f Commerce (Secre ta ry ) w i th au thor i t y by regulatory amendment t o requi re gear and f ish ing technique mod i f i ca t i on i n l ieu o f zoning and t o propose zoning con f igu ra t ion to resolve s im i la r con f l i c t s i n the FCZ o f f o ther F lo r ida Counties by regulatory amendment. Such special provisions requ i re spec i f i ca t ion o f proposed rules, analysis o f the i r impact through p repara t ion of an E n v i r o m e n t a l Assessment ( E A ) o r Supplemental Environmental Impact Statement (SEIS) and a Supplemental Regulatory Impact Review (SRIR) , and ho ld ing public hearings on the proposed rule. Classification Sect ion 3 0 4 ( a ) (1 ) ( C ) ( i i ) o f the Magnuson A c t requires the Secretary to pub l i sh regulat ions proposed by a Counci l w i th in 3 0 days o f rece ip t o f the amendment to the FMPs - <- - - & z=. and regulations. A t this t ime the Secretary has not determined t ha t the amendment t ha t these regulat ions would implement are consistent w i t h t he national standards, o ther prov is ions o f the Magnuson Ac t , and other appl icable law. The Secretary, i n making t ha t determinat ion, w i l l take into account the data, v iews, and comments rece ived dur ing the comme nt period. / Under the Nat ional Environmental Pol icy Ac t (NEPA) and NOAA D i rec t i ve 02-1 0, an environmental assessment ( E A ) was prepared to determine i f it was necessary to p repare a supplemental envirorrnental impact statement (SEIS). The EA concluded t h a t adoption and implementat ion o f the amendment and proposed regulat ions i s not a major Federa l ac t ion and w i l l not have a s ign i f icant impact on the qual i ty o f the human environment. I f f u r t h e r regulatory ac t ion is taken under the provisions o f the amendment al lowing i ns t i t u t i on o f gear and f ish ing technique requirements i n l ieu o f exclusive f ishing areas or i f con f l i c t s develop i n o ther unregulated areas the reso lut ion o f which requi res o the r action, a n e n v i r o m e n t a l assessment w i l l be prepared and publ ic hearings he ld t o determine i f the change i s a ma jo r Federal act ion, having a s ign i f icant impact o n the qua l i t y o f the human environment. If so, a SEIS w i l l be prepared under the NEPA. The Admin is t ra to r , NOAA, has determined t ha t t h i s rule i s not a ma jo r one r equ i r i ng the p repara t ion o f a regulatory impact analysis ( R I A ) under Execut ive O rde r 12291. The major bene f i t f rom th is amendment i s the ins t i tu t ion o f a permanent system to resolve the con f l i c t cooperat ively by the Secretary ( i n the FCZ) and State o f F lor ida ( i n i t s ju r isd ic i ton) . Through such resolut ion o f the con f l i c t , s ign i f i can t economic and soc ia l benef i ts accrue to the fishermen. I f f u r t he r regulatory ac t i on i s taken under the provisions o f the FMP amendment, NOAA w i l l determine whether an RIA must be prepared f o r t ha t action. The Council prepared a SRlR which concludes t h a t this r u l e w i l l have the fo l low ing i - =. - -- * economic e f fec ts : the SRlR indicated t h a t potent ia l benef i ts a r e s ign i f icant ly greater t han ;ra expected costs. The or ig ina l FMP resolved an armed c o n f l i c t between stone crab t r a p f ishermen and shrimp t r aw l f ishermen. This amendment o f the FMP allows b o t h f isher ies t o operate i n an order ly manner i n the area o f f Pasco, Hernando and Ci t rus Count ies, F lor ida. Under general ly unregulated condit ions i n the c o n f l i c t area f ishermen were i ncu r r i ng cumulative losses estimated a t $950,000, annually. These losses were a result o f los t product ion i n f ish ing harvest, los t gear, and the replacement costs o f lost o r damaged gear , a l l resu l t ing f rom the gear con f l i c t . Res t i tu t ion o f order ly f isher ies should reduce such losses to a negligible level. Such act ion i s also expected to reduce the enforcement bu rden on Federal and State agencies over t ha t exist ing i n the unmanaged f i sher ies , or i n the f isher ies regulated by emergency rule. Over t ime, under the proposed regulat ion, m o s t of the enforcement burden w i l l be borne by the State under the cooperative law enforcement agreement. Such a burden to mainta in o rder l y f isher ies w i l l be minimized. Costs to the Council f o r implementat ion are estimated a t $26,000. I f the f ishery had to be closed o r severely res t r i c ted ( by emergency rule or ru le re la ted no t i ce ) t o resolve a serious con f l i c t , it would resu l t i n adverse economic impacts o n the par t ic ipants i n the two f isher ies, ranging f rom $374,000 to less than $50 ,000 dependent o n the regulatory op t ion invoked. Such impact, however, must be contrasted against violence, c i v i l d isorder, and potent ia l loss o f l i f e and property. These impacts support the need to ins t i tu te the provision providing f o r res t i tu t ion of o rder l y f isheries. This proposed ru le i s exempt f rom the procedures o f Execut ive O rde r 12291 under sect ion 8 ( a ) ( 2 ) o f that order. Deadlines imposed under sect ion 304 of the Magnuson A c t requi re the Secretary to publish this proposed rule 3 0 days a f t e r i t s receipt . Accordingly, the proposed rule i s being repor ted to the D i rec to r , O f f i c e oC the W a g e m e n t and Budget, -* - * * wi th an explanat ion o f why i t i s not possible to fo l low procedures o f the o rder . The Counci l prepared an i n i t i a l regulatory f l e x i b i l i t y analysis ( IRFA) as par t of the SRlR which concludes that th i s proposed ru l e w i l l have a s ign i f icant e f f ec t o n small business ent i t ies. These e f f ec t s are included i n the SRlR which i s summarized above. This rule does not conta in a co l lec t ion o f i n fo rmat ion requirement f o r purposes o f the Paperwork Reduction Act. The Council determined t ha t th i s ru le w i l l be implemented i n a manner t h a t i s consistent to the maximum extent pract icab le wi th the approved coastal zone management programs o f Florida. The State o f F lo r ida Department o f Environmental Regulat ion has concurred w i th this determination. List of Subjects i n 5 0 CFR Parts 6 5 4 and 6 5 8 Fisheries, Reporting and recordkeeping requirements. Dated : For reasons set forth i " the preamble, 50 CFR Parts -654 a w 6 5 8 a r e amended as' z* + follows : 1 . The authority c i tat ion for Parts 6 5 4 and 6 5 8 reads as follows: AUTHORITY: 1 6 U.S.C 1 8 0 1 et seq. PART 654 - STONE CRAB FISHERY 2. Sect ion 654.2 i s amended by adding the de f i n i t i on o f Counci l and State to r ead as fol lows : 4654.2 Defini t ions. Counci l means the Gu l f o f Mexico Fishery Management Counci l , Suite 881, 5401 West - - . - - - - .& Kennedy Boulevard, Tampa, F lo r ida 33609. State means the State o f Flor ida. 3. Sect ion 654.23 is amended by redesignat ing the ex is t ing paragraph as ( a ) , wh ich i s republished i n i t s en t i re ty , and adding new paragraphs ( b ) , ( c ) , and ( d ) to r ead as fol lows : $654.23 Area rest r ic t ions. ( a ) Between January 1 and May 20, i t i s un lawfu l to use t r a w l gear i n that p a r t o f the FCZ (F igure 1 ) shoreward o f a rhumb l ine connect ing i n o rder points B a t 26O16.0' N. la t i tude and 81 O58.5' W. longi tude, C a t 26°00.01 N. la t i tude and 82O04.0' W. longitude, D a t 25O09.0' N. la t i tude and 81°47.6' W. longitude, E a t 24O54.5' N. lat i tude and 81 O50.5' W. longitude, and to the in te rsec t ion o f the seaward boundary o f the S ta te o f F lor ida and a l ine extending f r om E to Po in t F a t 24O41.9' N, la t i tude and 81°40.5' W. longitude (Snipe Po in t ) . ( b ) (1 ) Between 0001 hours October 5 to 2400 hours May 15 each year , i t i s un l aw fu l t o place stone crab t raps i n the water o r harvest stone crabs f r om traps i n t h a t area o f the FCZ bounded by a continuous l i ne connect ing the fo l low ing po in ts expected b y la t i tude and longitude (LORAN notations a r e uno f f i c i a l , and are included only for the convenience o f f ishermen) : LORAN r a t e 7980 Point Lat i tude Longitude 28O49.45' N ....a 82O55.75' W .. .a. Thence nor ther ly along the State boundary t o Point Q. This po in t i s o n the State boundary. ( 2 ) No person may p lace into the management area any ar t ic le , including f i sh i ng gear, w i t h the in tent to i n t e r f e re wi th f ish ing or obs t ruc t or damage f ish ing gear or f i sh i ng . vessels o f others; o r to u t i l i ze w i l l f u l l y f ish ing gear i n such a fashion t h a t i t obstructs o r damages the f ish ing gear o r f ish ing vessel o f another. ( 3 ) Stone c rab t raps found i n the areas descr ibed i n paragraph ( b ) ( 1 ) o f this sec t ion dur ing t he i r respective closed per iods w i l l be considered unclaimed o r abandoned proper ty and may be disposed o f i n any manner considered appropr ia te by t he Secretary o r an author ized o f f i ce r . Lines and buoys are considered p a r t o f t he trap. Owners o f these stone crab t raps are subject to c i v i l penalt ies. A l l stone c rab t raps f ished i n the FCZ w i l l be presumed to be the proper ty o f the most recent ly documented owner. ( c ) Procedure f o r modi fy ing ex is t ing res t r i c ted f ishing areas f o r stone crab f i shermen i n the FCZ ( inshore o f 83.0° W. longitude) o f f Pasco, Hernando, and C i t rus Count ies, Florida. < - - -- z* ( 1 ) The Pasco, ~erna 'ndo , and C i t r us Count ies Shrimping and Crabbing Advisory a Committee (Commit tee) may develop proposed exclusive f ishing areas for shrirnping and f o r crabbing o r o ther recommendations to resolve any con f l i c t i n bo th State wa te rs and the FCZ inshore o f 83.0' W . longitude, a t i t s publ ic meetings. Such a zoning proposal fo r f i sh i ng areas o r suggested change to an exist ing zoning r u l e may be i n i t i a t ed a t any time b y the \ Committee i n response to changing condit ions i n t he f ishery and may include zoning conf igurat ions that f luc tuate o r change on spec i f ic dates to a l low f o r opt imum produc t ion by the user groups af fected. ( 2 ) The Commit tee w i l l submit the zoning proposal to the State regu la to ry agencies [F l o r i da Department o f Natura l Resources (FDNR) and F lor ida Mar ine F isher ies Commission (FMFC) ] f o r implementat ion i n State waters and may submit the proposal t o the Council f o r review. ( 3 ) The Counci l , a f t e r i n i t i a l review, may submit comments to the S ta te point ing out def ic ienc ies o f the proposal f o r implementat ion i n the FCZ, o r the Counci l may take the proposal under advisement un t i l i t avails i t s e l f of comment presented at publ ic hearings h e l d by the State and u n t i l t he State has recommended i t s adopt ion by t he Council. ( 4 ) A f t e r the State has completed i t s review and accepted the proposal for promulgat ion as ru le , the State may request the Counci l adopt t ha t p o r t i o n o f the zoning proposal re la t ing to the FCZ. The Council w i l l review the proposal and administrat ive r e c o r d developed by the State i n support o f i t s proposed ru l e and w i l l recommend t h a t the Regional D i r ec to r implement ( o r not implement) the zoning proposal o r implement the proposal w i t h minor modi f icat ions i n the FCZ by not ice i n the FEDERAL REGISTER. I f the Counci l o r Regional D i r ec to r judges that the oppor tun i ty fo r publ ic comment through t he State system was inadequate, they may hold public hearings on the zoning proposal a f f e c t i n g the FCZ. - -. - -- 7* 3.x The Counci l may also avail i t s e l f o f the advice and counsel o f i t s Sc ien t i f i c and S ta t i s t i ca l Committee, i t s Shr imp and Stone Crab Advisory Panels, o r a n Ad Hoc Advisory Panel representat ive o f persons f ish ing the Federal wsters, i n the rev iew o f the proposal. Should the Counci l recommend that the Federal po r t i on o f the proposal not be implemented o r be modi f ied, it w i l l immediately no t i f y the State and spec i f y i t s reasons fo r such action. ( 5 ) I f the Regional D i r ec to r , a f t e r receiving the recommendations o f the Counci l , concludes that such recommendation i s consistent w i t h the object ives o f the FMPs, the Magnuson Act , or o ther applicable law, he may implement i t as Federal regu la t ion by no t i ce i n the FEDERAL REGISTER. Such regulat ion when implemented w i l l remain i n e f f ec t u n t i l ac t ion i s taken by the Council t o modi fy it under t he preceding process. I f the Regional D i r ec to r does not implement the recommended rule o f the Counci l , he w i l l immediately n o t i f y the Counci l and State o f his reasons f o r such ac t ion and may suggest an a l ternat ive t o the recommended rule. The Counci l , a f t e r confer r ing, w i t h the State, w i l l immediately advise the Regional D i r ec to r as to the acceptabi l i ty o f the al ternat ive. ( 6 ) I n the event t ha t the Commit tee fa i l s to act o r i s unable to develop a compromise so lu t ion f o r f ishing i n the area, o r i f t he Committee i s abolished or o therwise becomes nonfunct ional, the Counci l w i l l c a l l upon the FMFC t o provide the recommendations under steps ( 1 ) and ( 2 ) o f th i s section. The Counci l may t h e n u t i l i ze i t s own Ad Hoc Advisory Panel consist ing o f f ishermen f r o m the area a f fec ted t o advise t he Council o n the acceptabi l i ty o f these recommendations. I n the event the Committee i s enlarged o r rest ructured to have author i ty over zoning f o r o ther counties, the rest ructured commit tee may provide recommendations under steps ( 1 ) and ( 2 ) o f th is section. ( 7 ) Notwithstanding the procedural steps ( 1 ) through (6), the Regional D i r ec to r , i n consul ta t ion w i th o r based on i-ecommendations by the Counc ic ma-rough the regulatory - amendment process (preparat ion o f SElS o r EA and SRIR, ho ld ing public hearings, e tc . , ) take such ac t ion as may be necessary and appropriate to resolve any c o n f l i c t i n this o r any other p a r t o f the FCZ, providing such ac t i on i s consistent w i th t he object ives o f the FMPs, the hlagnuson Ac t and other applicable law and i s t a ken i n a manner which t o the maximum extent pract icab le i s consitent w i t h ac t ion recommended by o r t aken by the adjacent coas ta l state. The author i ty provided the Regional D i r ec to r here in may be exercised by no t i ce i n the FEDERAL REGISTER i n the event a more t imely regulatory response i s requ i red to reso lve o r prevent occurrence o f c o n f l i c t as considered herein. I n the event such ac t i on by no t i ce i s taken by the Regional D i r ec to r , i t sha l l be w i th the concurrence o f a major i ty o f the Council tha t (1 ) t he con f l i c t involved requi res a more immediate response t h a n that ava i lab le through the regulatory amendment process and ( 2 ) t h a t the proposed notice i s consistent w i t h the object ives o f the FMPs, the Magnuson A c t and o the r appl icable law and i s taken i n a manner which to the maximum extent pract icab le i s consistent w i t h ac t ion recommended o r taken by the adjacent coastal state. ( d ) I n the event that the Regional D i r ec to r determines, based on r e l i ab l e i n f o rma t i on f rom appropriate law enforcement agencies, that the ex is t ing management regulat ions established under paragraph ( c ) of th i s sec t ion a r e inadequate t o prevent conf l ic t and t h a t d i rec t conf l i c t has occurred o r is imminent in the a r e a of the FCZ ( i n s h o r e of 83.0° W. longitude) o f f Pasco , Hernando and C i t r u s Count ies , Flor ida , h e may modify the ex i s t ing management a r e a by one o r more of t h e following act ions by notice in the FEDERAL REGISTER : ( i ) In conjunct ion with similar a c t i o n by the S t a t e of Flor ida close t h e ent i re a r e a o r por t ion thereof to s tone c rab fishing fo r a period not to exceed 30 days; <- - -- 7* jrr ( i i ) Close t h e FCZ o r por t ion t h e r e o f of t h e a r e a to s t o n e c rab f i sh ing for a pe r iod not to exceed 30 d a y s ; ( i i i ) Cooperatively with the S ta te o r with c o n s e n t of t h e S t a t e , divide t h e e n t i r e a r e a o r por t ion t h e r e o f , into two o r four east-west f ishing a r e a s , sepa ra ted by appropr ia te b u f f e r zones , f o r the dura t ion of the stone c r a b season ( o r such other pe r iod as deemed a p p r o p r i a t e ) . Stone c rab fishing will be allowed only in a l t e r n a t e fishing a r e a s and wi l l be prohibited in the b u f f e r zones. The e n t i r e a r e a will be closed t o stone c r a b fishing f o r t e n days to allow movement of c r a b t r aps into the crabbing a r e a s speci f ied in t h e rule; o r ( i v ) Modify t h e conf igurat ion of the exis t ing boundaries of the fishing a r e a s a s speci f ied in the rule in the FCZ fo r the durat ion of the s tone c r a b season and c lose t h e f i she r i e s in the a r e a s a f fec ted f o r t e n days t o allow s tone c rab t r a p s to b e moved. Provide such b u f f e r zones where no fishing is a l lowed, a s a r e deemed necessary . ( 2 ) Not l a t e r than 7 2 hours a f t e r the e f f e c t i v e da te of the modif ica t ion t o the regula t ion, the Regional Di rec to r will conduct a fact-finding meet ing whose par t ic ipants may include, but not be limited t o , the following: ( i ) The Chairman of the Council o r his designee; ( i i ) The D i r ec to r o f the FDNR o r his designee; ( i i i ) The Chairman o f the FMFC o r his designee; ( i v ) Local news media as may be appropriate; - . - *d t Such user group representat ives or organizat ions as may be appropriate and pract icab le; and ( v i ) Others deemed appropriate by the Regional Di rector . ( 3 ) The fact - f ind ing meet ing w i l l be fo r the purpose o f evaluat ing the fo l lowing: ( i ) The existence and seriousness o f the con f l i c t needing reso lu t ion by the mod i f i ca t ion to the ex is t ing ru le ; ( i i ) The appropriate dura t ion o f the mod i f i ca t i on to the ex is t ing ru le ; ( i i i ) Other solutions to the con f l i c t ; and ( i v ) Other relevant mat ters . ( 4 ) The Regional D i r ec to r w i th in t e n days a f t e r conclusion o f the fact - f ind ing meet ing w i l l e i the r rescind, modi fy o r allow the mod i f i ca t i on to the exist ing ru le to r ema in unchanged through not ice i n the FEDERAL REGISTER. PART 6 5 8 - SHRIMP FISHERY OF THE GULF OF MEXICO ( 4 ) Sect ion 658.2 i s amended by adding the de f i n i t i on o f Council and State to read as fo l lows: $658.2 Def ini t ions. Counci l means the Gu l f o f Mexico Fishery Management Counci l , Suite 881 , 5401 West ' 1 Kennedy Boulevard, Tampa, F lo r ida 33609. State means the State o f Florida. 3. Sect ion 658.23 i s amended by redesignat ing the ex is t ing paragraph as ( a ) , which i s republished i n i t s en t i re ty , and adding new paragraphs ( b ) , ( c ) , and ( d ) to r ead as fol lows : $658.23 Stone crab area closures. ( a ) Between January 1 and May 2 0 , the area described i n th i s paragraph i s c losed t o t r aw l gear, including live ba i t gear. The area i s t h a t pa r t o f the f ishery conservat ion zone shoreward o f a l ine connecting the fo l lowing points (see Figure 2 ) : Point Lat i tude Longitude Common name .......... ............ ............ M 24O41.9' N. 81°40 .51 W. Snipe Po in t ( b ) ( 1 ) Between 0001 hours October 5 to 2400 hours May 2 0 each year , it i s un l aw fu l t o f ish f o r shrimp i n the fo l lowing two areas o f the FCZ (see F igure 4 ) : ( i ) That area o f the FCZ bounded by a continuous l ine connect ing the fo l lowing po in ts expressed by la t i tude and longitude (LORAN notations are uno f f i c i a l , and a r e included only f o r the convenience o f f ishermen) : AREA I L O R A N r a t e 7980 -- - - - - Point Lat i tude Lo ngi tud e W X Y Z ( i i ) That a r e a o f the FCZ bounded by a continuous i ine connecting the fo l low ing points expressed by la t i tude and longitude (LORAN notat ions a re u n o f f i c i a l , and are inc luded only f o r the convenience o f f ishermen) : AREA II LORAN r a t e 7980 Point Lat i tude Longitude Thence nor ther ly along the State boundary t o Point X. This po in t is on the State boundary ( 2 ) No person may place in to the FCZ any a r t i c l e , inc lud ing f ish ing gear, w i t h the in tent to in te r fe re w i th f ishing o r obst ruct or damage f ishing gear or f i sh i ng vessels o f others; o r to u t i l i ze w i l l f u l l y f ish ing gear i n such a fash ion tha t it obstructs o r damages the f ishing gear o r f i sh ing vessel o f another. ( c ) Procedure f o r mod i fy ing ex is t ing res t r i c ted f ishing areas fo r shr imp f ishemen i n the FCZ ( inshore o f 83.0' W. longitude) o f f Pasco, Hernando, and C i t r u s Count ies, Flor ida. ( 1 ) The Pasco, Hernando, and C i t r us Count ies Shrimping and Crabbing Advisory Committee (Commit tee) may develop proposed exclusive f ishing areas fo r shr imping and f o r crabbing o r o ther recommendations to resolve any con f l i c t i n bo th State waters and the FCZ inshore o f 83.0° W. longitude, a t i t s publ ic meetings. Such a zoning proposal f o r f ish ing areas o r suggested change t o an exist ing zoning r u l e may be in i t i a ted a t any t ime b y the Committee i n response to changing condit ions i n the f ishery and may include z?ning conf igurat ions that f luc tuate o r change o n speci f ic dates to a l low f o r optimum product ion by the user groups af fected. ( 2 ) The Committee w i l l submit the zoning proposal to t he State regulatory agencies [F lo r ida Department o f Natura l Resources (FDNR) and F lor ida Mar ine F isher ies Commission ( F M F C ) ] f o r implementat ion in' State waters and may submit the prqae-sal t o the Counci l for review. ( 3 ) The Counci l , a f t e r i n i t i a l rev iew, may submi t comments to the State po in t ing out def ic ienc ies o f the proposal f o r implementat ion i n t he FCZ, o r the Counci l may take the proposal under advisement un t i l i t avails i t s e l f o f comment presented at pub l i c hearings he ld by the State and u n t i l the State has recommended i t s adoption by the Council. ( 4 ) A f t e r the State has completed i t s rev iew and accepted t he proposal f o r promulgat ion as ru le , the State may request the Counci l adopt t ha t p o r t i o n o f the zoning proposal re la t ing to the FCZ. The Council w i l l review the proposal and administrat ive r e c o r d developed by the State i n support o f i t s proposed ru le and w i l l recommend t h a t the Reg io - . I D i r ec to r implement ( o r not implement) the zoning proposal o r implement t he proposal w i th minor modi f icat ions i n the FCZ by not ice i n the FEDERAL REGISTER. I f the Counci l o r Regional D i rec to r judges that the opportuni ty f o r publ ic comment through the State system ' was inadequate, they may ho ld public hearings o n t he zoning proposal a f f e c t i n g the FCZ. The Counci l may also avail i t se l f o f the advice and counsel o f i t s Sc ien t i f i c and S ta t i s t i ca l Committee, i t s Shrimp and Stone Crab Advisory Panels, o r a n Ad Hoc Advisory Panel representat ive o f persons f ishing the Federa l waters, i n the rev iew o f the proposal. Should the Counci l recommend that t he Federal p o r t i o n o f the proposal not be implemented o r be modi f ied, i t w i l l immediately no t i f y the State and spec i fy i t s reasons fo r such action. ( 5 ) I f the Regional D i r ec to r , a f t e r receiving the recommendations o f the Counc i l , concludes tha t such recommendation i s consistent w i t h the object ives o f the F M P s , the Magnuson Ac t , o r o ther applicable law, he may implement i t as Federal regu la t ion by no t i ce i n the FEDERAL REGISTER. Such regulat ion when implemented w i l l remain i n e f f e c t un t i l ac t ion i s taken by the Counci l , to modi fy i t under the preceding process. I f the Regional D i r ec to r does not implement the recommended rule o f the Counci l , he w i l l immediately n o t i f y the Counci l and State o f his reasons f o r such ac t ion and may suggest an a l ternat ive t o the recommended rule. The Counci l , a f t e r con fe r r ing w i t h the State, w i l l immediately advise the Regional D i r ec to r as to the acceptabi l i ty o f the al ternat ive. ( 6 ) I n the event t ha t the Committee fa i l s to act o r i s unable to develop a compromise so lu t ion f o r f ishing i n the area, or i f the Commit tee is abolished or o therwise becomes nonfunct ional, the Counci l w i l l c a l l upon the FMFC t o provide the recommendations under steps ( 1 ) and ( 2 ) o f t h i s section. The Counci l may u t i l i z e i t s own A d Hoc Advisory Panel consisting o f f ishermen f rom the area a f f ec ted to advise the Counci l o n the acceptabi l i ty o f these recommendations. I n the event the Committee i s enlarged o r rest ructured to have author i ty over zoning fo r o ther counties, t he res t ruc tu red commit tee may provide recommendations under steps ( 1 ) and ( 2 ) o f this section. ( 7 ) Notwithstanding the procedural steps ( 1 ) through ( 6 ) , the Regional D i r ec to r , i n consul ta t ion w i th o r based on recommendations by the Council, may through the regu la to ry amendment process (p repara t ion o f SElS o r EA and SRIR, ho ld ing public hearings, e tc . , ) take such ac t ion as may be necessary and appropriate to resolve any con f l i c t i n th is o r any other p a r t o f the FCZ, providing such ac t i on is consistent w i th t he object ives o f the FMPs, the Magnuson Ac t and other applicable law and i s t aken i n a manner which t o the maximum extent pract icab le i s consitent w i th ac t ion recommended by o r t aken by the adjacent coas ta l state. The author i ty provided the Regional D i rec to r here in may be exercised by no t i ce i n the FEDERAL REGISTER i n the event a more t imely regulatory response i s requi red to resolve o r prevent occurrence of con f l i c t as considered herein. I n the event such ac t ion by not ice i s taken by the Regional D i r ec to r , i t sha l l be w i t h the concurrence o f a major i ty o f the - & . - -- L Council tha t ( 1 ) t he con f l i c t involved requi res a more immediate response t h a n that ava i lab le through the regulatory amendment process and ( 2 ) t h a t the proposed notice i s consistent w i th the object ives o f the FMPs, the Magnuson Ac t and o the r appl icable law and i s taken i n a manner which to the maximum extent pract icab le i s consistent w i t h ac t ion recommended o r taken by the adjacent coastal state. ( d ) I n the event that the Regional D i r ec to r determines, based on r e l i ab l e i n f o rma t i on f rom appropriate law enforcement agencies, that the ex is t ing management regulat ions established under paragraph ( c ) o f th is sect ion are inadequate t o prevent con f l i c t and tha t d i rec t c o n f l i c t has occurred o r is imminent i n the area o f the FCZ ( inshore o f 83.0° W. longitude) o f f Pasco, Hernando and C i t r us Counties, Flor ida, he may m o d i f y the ex i s t i ng management area by one o r more o f the fo l lowing actions by notice i n the FEDERAL REGISTER : ( i ) I n conjunct ion w i th s imi lar ac t i on by the State o f F l o r i da close the ent i re a r e a o r po r t i on thereof to shrimp f ish ing f o r a pe r i od not to exceed 3 0 days; ( i i ) Close the FCZ o r po r t i on t he reo f o f the area to shr imp f ishing f o r a per iod not to exceed 3 0 days; ( i i i ) Cooperat ively w i th the State o r w i th consent o f the State, div ide the ent i re area o r p o r t i o n thereof, in to two o r four east-west f ishing areas, separated by appropriate b u f f e r zones, f o r the durat ion o f the stone c rab season ( o r such other pe r i od as deemed appropr ia te) . Shrimp fishing w i l l be al lowed only i n a l ternate f ishing areas and w i l l be proh ib i ted i n the b u f f e r zones. The en t i re area w i l l be closed to shrimp fishing f o r t e n days to a l low movement o f crab t raps in to the crabbing areas spec i f ied i n t he rule; o r ( i v ) Modi fy the con f igu ra t ion o f the ex is t ing boundaries o f the f i sh ing areas as speci f ied i n the ru le i n the FCZ fo r the dura t ion o f the sto; c r a f i e a s o n and close thi? -i i;a f isher ies i n the areas a f fec ted f o r t en days to a l low stone crab t raps to be moved. Prov ide such b u f f e r zones where no f ish ing i s a l lowed, as are deemed necessary. ( 2 ) Not l a t e r than 7 2 hours a f t e r the e f f ec t i ve date o f the mod i f i ca t ion t o the ? regulat ion, the Regional D i r ec to r w i l l conduct a fact - f ind ing meet ing whose par t ic ipants may include, but not be l im i ted to, the fo l lowing: ( i ) The Chairman o f the Council o r his designee; ( i i ) The D i r e c t o r o f the FDNR o r h is designee; ( i i i ) The Chai rman o f the FMFC o r h is designee; ( i v ) Local news media as may be appropriate; ( v ) Such user group representat ives o r organizat ions as may be appropriate and pract icab le; and ', ( v i ) Others deemed appropriate by the Regional Di rector . ( 3 ) The fact - f ind ing meet ing w i l l be f o r the purpose o f evaluat ing t he . fol lowing: ( i ) The existence and seriousness o f the con f l i c t needing reso lut ion by the mod i f i ca t ion to the exist ing ru le ; ( i i ) The appropriate dura t ion o f the mod i f i ca t i on to the exist ing ru le ; . . ( i i i ) Other solutions to the con f l i c t ; and ( i v ) Other relevant mat ters . ( 4 ) The Regional D i r ec to r wi th in t e n days a f t e r conclusion o f the fact - f ind ing meet ing w i l l e i the r rescind, modify o r allow the mod i f i ca t ion to the exist ing ru le to r ema in unchanged through not ice i n the FEDERAL REGISTER. 8 2 - O O ' V 81 -30°W FIGURE 2. * ~ u , ~ $ i d & d ' ~ o S H R I W I N C BETYEEN JANUARY 1 AND MY 20.. Federal Register I Vol. 48. No. 87 / Wednesday. April 6.1983 / Rules and Regulations - 14906 F i g u r e 3 . Chart d e l i n e a t i n g a r e a s c l o s e d t o f i s h i n g f o r shrimp o r s t o n e c r a b s ( n o t t o s c a l e , f o r i l l u s t r a t i v e proposes o n l y ) . 149U8 Federal Re@ster / Vol. 48, No. 67 / Wednesday, April 6,1983 / Rules and Regulations Figure 4 . Chart del ineating areas closed t o f i sh ing f o r shrimp or stone crab, '(not t o scale, f o r i l l u s t r a t i v e purposes on ly ) . - - Ul6a-C .