FINAL REEF FISH AMENDMENT 30B: October 2008

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FINAL REEF FISH AMENDMENT 30B: October 2008 rev.10/10/2008 FINAL REEF FISH AMENDMENT 30B: GAG – END OVERFISHING AND SET MANAGEMENT THRESHOLDS AND TARGETS, RED GROUPER – SET OPTIMUM YIELD TAC AND MANAGEMENT MEASURES, TIME/AREA CLOSURES, AND FEDERAL REGULATORY COMPLIANCE Including Environmental Impact Statement, Regulatory Impact Review, and Regulatory Flexibility Act Analysis October 2008 Gulf of Mexico Fishery Management Council National Oceanic & Atmospheric Administration 2203 North Lois Avenue, Suite 1100 National Marine Fisheries Service Tampa, Florida 33607 Southeast Regional Office th 813-348-1630 263 13 Avenue South 813-348-1711 (fax) St. Petersburg, Florida 33701 888-833-1844 Toll Free 727-824-5308 [email protected] 727-824-5305 (fax) http://www.gulfcouncil.org http://sero.nmfs.noaa.gov This is a publication of the Gulf of Mexico Fishery Management Council Pursuant to National Oceanic and Atmospheric Administration Award No. NA05NMF4410003. This page left intentionally blank Table of Contents ABBREVIATIONS USED IN THIS DOCUMENT IV EXECUTIVE SUMMARY VII FISHERY IMPACT STATEMENT - SOCIAL IMPACT ASSESSMENT XXII INTRODUCTION XXII PROBLEMS AND METHODS XXII SOCIAL IMPACT ASSESSMENT DATA NEEDS XXIII FINAL ENVIRONMENTAL IMPACT STATEMENT (FEIS) COVER SHEET XXVI 1 INTRODUCTION 1 1.1 BACKGROUND 1 1.2 STATUS OF THE RED GROUPER AND GAG STOCKS IN THE GULF OF MEXICO 3 1.2.1 Gag35B Stock Assessment (SEDAR 10) With Subsequent Reanalysis 3 1.2.2 Red6B Grouper Stock Assessment (SEDAR 12) 11 1.3 PURPOSE AND NEED FOR ACTION 15 1.4 HISTORY OF MANAGEMENT 17 2 MANAGEMENT ALTERNATIVES 25 2.1 ACTION 1. SET GAG THRESHOLDS AND BENCHMARKS 25 2.2 ACTION 2. RED GROUPER MINIMUM STOCK SIZE THRESHOLD (MOVED TO CONSIDERED BUT REJECTED) 30 2.3 ACTION 3. SET GAG TAC 30 2.4 ACTION 4. SET RED GROUPER TAC 36 2.5 ACTION 5. RED GROUPER AND GAG ALLOCATIONS 41 2.6 ACTION 6. SHALLOW-WATER GROUPER ANNUAL CATCH LIMITS AND ACCOUNTABILITY MEASURES 47 2.7 ACTION 7. SHALLOW-WATER GROUPER, RED GROUPER AND GAG COMMERCIAL QUOTAS 55 2.8 ACTION 8. APPLICATION OF QUOTA CLOSURES 59 2.9 ACTION 9. RECREATIONAL HARVEST OF GAG AND RED GROUPER 67 2.10 ACTION 10. ALTERNATIVES TO REDUCE DISCARD MORTALITY OF GROUPER 89 2.11 ACTION 11. CREATION OF TIME/AREA CLOSURES 93 2.12 ACTION 12. DURATION OF TIME/AREA CLOSURES 105 2.13 ACTION 13. FEDERAL REGULATORY COMPLIANCE 112 3 DESCRIPTION OF THE FISHERY AND AFFECTED ENVIRONMENT 116 3.1 DESCRIPTION OF GEAR TYPES USED IN THE COMMERCIAL AND RECREATIONAL FISHERIES 116 3.2 DESCRIPTION OF AFFECTED PHYSICAL ENVIRONMENT 118 3.3 DESCRIPTION OF AFFECTED BIOLOGICAL ENVIRONMENT 122 3.4 DESCRIPTION OF THE ECONOMIC AND SOCIAL ENVIRONMENT 130 3.4.1 Commercial Sector 130 3.4.2 Recreational Sector 148 i 3.4.3 Affected Environment, Social 171 3.4.4 Madeira Beach, Florida (incorporated, pop. 4,511) 174 3.4.5 Panama City, Florida (incorporated, pop. 36,417) 178 3.4.6 St. Petersburg, Florida (incorporated, pop. 248,232) 182 3.5 ADMINISTRATIVE ENVIRONMENT 186 4 BYCATCH PRACTICABILITY ANALYSES 187 5 ENVIRONMENTAL CONSEQUENCES 203 5.1 ACTION 1. SET GAG THRESHOLDS AND BENCHMARKS 203 5.2 ACTION 2. RED GROUPER MINIMUM STOCK SIZE THRESHOLD 209 5.3 ACTION 3. SET GAG TAC 209 5.4 ACTION 4. SET RED GROUPER TAC 221 5.5 ACTION 5. RED GROUPER AND GAG ALLOCATIONS 227 5.6 ACTION 6. SHALLOW-WATER GROUPER ANNUAL CATCH LIMITS AND ACCOUNTABILITY MEASURES 239 5.7 ACTION 7. SHALLOW-WATER GROUPER, RED GROUPER, AND GAG COMMERCIAL QUOTAS 243 5.8 ACTION 8. APPLICATION OF QUOTA CLOSURES 252 5.9 ACTION 9. RECREATIONAL HARVEST OF GAG AND RED GROUPER 266 5.10 ACTION 10. ALTERNATIVES TO REDUCE DISCARD MORTALITY OF GROUPER 281 5.11 ACTION 11. CREATION OF TIME/AREA CLOSURES 293 5.12 ACTION 12. DURATION OF TIME/AREA CLOSURES 308 5.13 ACTION 13. FEDERAL REGULATORY COMPLIANCE 313 5.14 CUMULATIVE EFFECTS ANALYSES (CEA) 319 5.15 UNAVOIDABLE ADVERSE EFFECTS 345 5.16 RELATIONSHIP BETWEEN SHORT-TERM USES AND LONG-TERM PRODUCTIVITY 346 5.17 MITIGATION, MONITORING AND ENFORCEMENT MEASURES 347 5.18 IRREVERSIBLE AND IRRETRIEVABLE COMMITMENTS OF RESOURCES 348 5.19 ANY OTHER DISCLOSURES 349 6. REGULATORY IMPACT REVIEW 350 6.1 INTRODUCTION 350 6.2 PROBLEMS AND ISSUES IN THE FISHERIES 351 6.3 OBJECTIVES 351 6.4 DESCRIPTION OF THE FISHERIES 351 6.5 IMPACTS OF MANAGEMENT ALTERNATIVES 351 6.5.1 Action 1: Set Gag Thresholds and Benchmarks 351 6.5.2 Action 2: Action Moved to the Considered but Rejected Section 352 6.5.3 Action 3: Set Gag TAC 352 6.5.4 Action 4: Set Red Grouper TAC 352 6.5.5 Action 5: Gag and Red Grouper Allocations 353 6.5.6 Action 6: Shallow-water grouper Interim Annual Catch Limits and Accountability Measures 353 6.5.7 Action 7: Shallow Water, Gag and Red Grouper Commercial Quotas 353 6.5.8 Action 8: Application of Quota Closures 354 6.5.9 Action 9: Recreational Harvest of Gag and Red Grouper 354 ii 6.5.10 Action 10: Grouper Discard Mortality Reduction 355 6.5.11 Action 11: Creation of Time/Area Closures 355 6.5.12 Action 12: Duration of Time/Area Closures 356 6.5.13 Action 13: Federal Regulatory Compliance 356 6.6 PRIVATE AND PUBLIC COSTS 356 6.7 DETERMINATION OF SIGNIFICANT REGULATORY ACTION 357 7 REGULATORY FLEXIBILITY ACT ANALYSIS 357 8 OTHER APPLICABLE LAW 370 9 LIST OF PREPARERS 377 10 LIST OF AGENCIES, ORGANIZATIONS, AND PERSONS TO WHOM COPIES OF THE AMENDMENT/EIS ARE SENT 377 11 PUBLIC HEARING LOCATIONS AND DATES 378 12 SCOPING HEARING SUMMARIES 378 13 ALTERNATIVES CONSIDERED BUT REJECTED 401 ACTION 2. RED GROUPER MINIMUM STOCK SIZE THRESHOLD 401 ACTION 8. APPLICATION OF QUOTA CLOSURES 402 ACTION 9. RECREATIONAL HARVEST OF GAG AND RED GROUPER 408 ACTION 10. ALTERNATIVES TO REDUCE DISCARD MORTALITY OF GROUPER 410 14 REFERENCES 413 15 INDEX 424 16 RESPONSE TO COMMENTS ON DEIS 428 iii ABBREVIATIONS USED IN THIS DOCUMENT AA Assistant Administrator for Fisheries ABC Allowable Biological Catch ACL Annual Catch Limit ALS Accumulated Landings System (commercial fishing statistics) AM Accountability Measures APA Administrative Procedures Act ASPIC A Stock Production Model Incorporating Covariates B Biomass BiOp Biological Opinion CEA Cumulative Effects Analysis CEQ Council on Environmental Quality CFLP Coastal Fisheries Logbook Program CFR Code of Federal Regulations CMP Coastal Migratory Pelagic COI Certificate of Inspection Council Gulf of Mexico Fishery Management Council CPI Consumer Price Index CPUE Catch Per Unit Effort CZMA Coastal Zone Management Act DQA Data Qualtiy Act DEIS Draft EIS EA Environmental Assessment EEZ Exclusive Economic Zone EFH Essential Fish Habitat EIS Environmental Impact Statement ELMR Estuarine Living Marine Resources E.O. Executive Order ESA Endangered Species Act F Instantaneous Fishing Mortality Rate FAO Food and Agriculture Organization FEIS Final EIS FL Fork Length FLS Fisheries Logbook System FMP Fishery Management Plan FR Federal Register GAJ Greater Amberjack GMFMC Gulf of Mexico Fishery Management Council GOM Gulf of Mexico GOMFF Gulf of Mexico Finfish GOMRF Gulf of Mexico Reef Fish GTF Gray Triggerfish GULFFIN Gulf Fisheries Information Network HAPC Habitat Area of Particular Concern iv IFQ Individual Fishing Quota IRFA Initial Regulatory Flexibility Analysis M Natural Mortality Rate MFMT Maximum fishing mortality threshold (overfishing threshold) MMPA Marine Mammal Protection Act mp million pounds MRFSS Marine Recreational Fisheries Statistics Survey MSFCMA Magnuson-Stevens Fisheries Conservation and Management Act MSRA Magnuson-Stevens Reauthorization Act MSST Minimum stock size threshold (overfished threshold) MSY Maximum sustainable yield NMFS National Marine Fisheries Service (NOAA Fisheries) NEPA National Environmental Policy Act NOAA National Oceanic & Atmospheric Administration NOS National Ocean Service OMB Office of Management and Budget OY Optimum yield PRA Paperwork Reduction Act RA Regional Administrator, SERO RFA Regulatory Flexibility Act RFFA Reasonalbly Foreseeable Future Action RFSAP Reef Fish Stock Assessment Panel RIR Regulatory Impact Review SAV Submerged Aquatic Vegetation SAFMC South Atlantic Fishery Management Council SEIS Supplemental EIS SEAMAP Southeast Area Monitoring and Assessment Program SEFSC Southeast Fisheries Science Center SEDAR Southeast Data, Assessment and Review SERO Southeast Regional Office (NMFS) SFA Sustainable Fisheries Act of 1996 SIA Social Impact Assessment SL Standard Length SMZ Special Management Zone SPR Spawning Potential Ratio SSB Spawning Stock Biomass SSBR Spawning Stock Biomass per Recruit SSC Scientific and Statistical Committee TAC Total allowable catch TIP Trip Interview Program TL Total length TPWD Texas Parks and Wildlife Department USGC U. S. Coast Guard VEC Valued Environmental Component VPA Virtual Population Analyses wF West Florida v VMS Vessel Monitoring System YPR Yield per Recruit vi EXECUTIVE SUMMARY Stock assessments were conducted in 2006 under the Southeast Data, Assessment and Review (SEDAR) process for gag (SEDAR 10) and red grouper (SEDAR 12), with additional analyses conducted in 2007. Both assessments were subsequently re-evaluated, resulting in corrections to some of the gag data inputs. While red grouper was found to have fully recovered from its previous condition of overfished and undergoing overfishing, gag were found to be undergoing overfishing as of 2004. The overfished status for gag is undetermined since gag do not have a Sustainable Fisheries Act (SFA) compliant definition for minimum stock size threshold (MSST). However, under any MSST definition considered in this amendment, gag was not overfished in 2004. Red grouper were placed under a rebuilding plan in 2004. The stock had been found to be overfished and undergoing overfishing in both a 1999 stock assessment and a subsequent 2002 assessment. However, the 2002 assessment indicated that the stock was recovering faster than previously estimated, most likely due to a strong recruitment year class in 1997. Management measures implemented in 2004 as part of the rebuilding plan included a reduced aggregate commercial shallow-water grouper quota, a red grouper quota within the aggregate quota, and a recreational bag limit of two red grouper within the five fish aggregate grouper bag limit.
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