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Final EA on Gear Changes for the Pacific Coast Groundfish Fishery's

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Final EA on Gear Changes for the Pacific Coast Groundfish Fishery's GEAR CHANGES FOR THE PACIFIC COAST GROUNDFISH FISHERY’S TRAWL CATCH SHARE PROGRAM Environmental Assessment Magnuson-Stevens Fishery Conservation and Management Act Analysis Regulatory Impact Review Initial Regulatory Flexibility Review Prepared by National Marine Fisheries Service 7600 Sand Point Way NE, BIN C15700 Seattle, WA 98115-0070 206-526-6150 December 2018 Abstract ABSTRACT This document evaluates the proposed action to revise and remove trawl gear regulations for the Pacific Coast groundfish fishery’s trawl catch share program, including trawl gear configuration and gear use. Pre-trawl rationalization regulations applied to the entire fleet may no longer be appropriate for managing individuals operating under the incentives provided in the rationalized portion of the Pacific Coast groundfish fishery. Incentives of the catch share program include resources allocated to individuals (individual fishing quota [IFQ]) or to cooperatives, 100 percent at-sea and shoreside monitoring, and individuals or cooperatives held accountable for the consequences of their decisions. The Pacific Fishery Management Council (Council) selected the following as its preferred alternatives under this proposed action. • Eliminate minimum mesh size requirements for groundfish trawls. • Update the regulatory language for measuring mesh sizes to include knotless webbing. • Eliminate groundfish trawl codend restrictions (e.g., allow double-wall codends). • Modify the selective flatfish trawl (SFFT) definition to include two- or four-seam nets (coastwide), and eliminate the SFFT requirement for groundfish bottom trawl shoreward of the trawl rockfish conservation area (RCA) north of 40o10' N. latitude. A NMFS sub-option to this alternative would eliminate the requirement to use SFFT north of 42o N. latitude, but retain the requirement to use SFFT shoreward of the trawl RCA between 42o N. latitude and 40o10ꞌ N. latitude shoreward of the trawl RCA. • Eliminate chafing gear restrictions for groundfish trawl. • Allow shoreside IFQ trawl vessels to carry and use multiple types of groundfish trawl gear on the same trip. • Allow shoreside IFQ trawl vessels to fish in multiple IFQ management areas on the same trip and the same haul. • Allow shoreside IFQ groundfish trawl vessels to bring a haul on board before all catch from the previous haul has been stowed. The purpose of this action is to provide more flexibility in the configuration and use of gear for participants in the trawl rationalization program, while at the same time ensuring that conservation objectives are met. Such flexibility is expected to foster innovation and allow for more optimal harvest operations. Benefits may include increased efficiency through reduced costs and increased revenues. Gear Changes for the Pacific Coast Groundfish Fishery’s Trawl Catch Share Program December 2018 Final EA / MSA / RIR / IRFA i Table of Contents TABLE OF CONTENTS ABSTRACT ............................................................................................................................................................. I ACRONYMS AND ABBREVIATIONS ............................................................................................................. XI 1 INTRODUCTION ..................................................................................................................................... 1-1 1.1 The Proposed Action ......................................................................................................................... 1-1 1.2 Purpose and Need for the Action ....................................................................................................... 1-2 1.2.1 Purpose ................................................................................................................................... 1-2 1.2.2 Need ....................................................................................................................................... 1-2 1.2.3 Description of the Management Area .................................................................................... 1-3 1.3 Background .................................................................................................................................. 1-5 1.3.1 Overview of the Groundfish Fisheries ................................................................................... 1-5 1.3.2 Implementation of the Trawl Rationalization Program – A Historical Perspective of the Groundfish Trawl Fishery and Associated Regulations ......................................................... 1-6 1.4 Public Participation and the Scoping Process .................................................................................... 1-9 1.4.1 Council and Agency Scoping Results .................................................................................. 1-11 1.4.1.1 Response to the NOI and Public Input at Council Meetings ................................... 1-12 1.4.1.2 Public Comments on the Draft EA and the Proposed Rule ..................................... 1-12 1.5 New Information and Additional Analyses Relevant to the Development of this EA ..................... 1-12 2 ALTERNATIVES ..................................................................................................................................... 2-1 2.1 Minimum Mesh Size (Issue A) .......................................................................................................... 2-1 2.2 Measuring Mesh Size (Issue B) ......................................................................................................... 2-3 2.3 Codend Regulations (Issue C) ........................................................................................................... 2-5 2.4 Selective Flatfish Trawl (Issue D) ..................................................................................................... 2-5 2.5 Chafing Gear (Issue E) .................................................................................................................... 2-10 2.6 Multiple Trawl Gears on Board (Issue F) ........................................................................................ 2-13 2.7 Fishing in Multiple IFQ Management Areas (Issue G).................................................................... 2-16 2.8 Bringing a New Haul on Board before Previous Catch is Stowed (Issue H) ................................. 2-20 2.9 Summary of Council’s Preferred Alternatives and NMFS Sub-option 1 ......................................... 2-21 2.10 Alternatives Considered but Rejected .............................................................................................. 2-22 2.10.1 Removal of the SFFT Description from Regulations ........................................................... 2-22 2.10.2 Sub-options Associated with Alternative F3 (Multiple Gears Onboard) ............................. 2-22 2.10.3 Allow Year-round Use of Midwater Gear ............................................................................ 2-23 2.10.4 Use of Midwater Trawl Gear Inside the Trawl RCA South of 40o10ꞌ N. Latitude ............... 2-23 2.10.5 Allow the Targeting of Pacific Whiting with any Type of Trawl Gear................................ 2-23 2.10.6 Allowance to Move Fixed Gears Across Management Lines .............................................. 2-24 2.10.7 Fixed Gear Restrictions South of 36° N. Latitude................................................................ 2-24 3 AFFECTED ENVIRONMENT ................................................................................................................ 3-1 3.1 Physical Environment ........................................................................................................................ 3-1 3.1.1 Essential Fish Habitat (EFH) ................................................................................................. 3-1 3.1.2 Essential Fish Habitat Conservation Area (EFHCA) ............................................................. 3-3 3.1.3 Rockfish Conservation Area (RCA) ...................................................................................... 3-3 3.2 Biological Environment ..................................................................................................................... 3-4 3.2.1 Groundfish ............................................................................................................................. 3-5 3.2.1.1 Target Groundfish Species ........................................................................................ 3-5 3.2.1.2 Non-target Groundfish Species ............................................................................... 3-12 3.2.1.3 Discard Mortality of Target and Non-target Groundfish ........................................ 3-19 Gear Changes for the Pacific Coast Groundfish Fishery’s Trawl Catch Share Program December 2018 Final EA / MSA / RIR / IRFA iii Table of Contents 3.2.2 Prohibited Species ................................................................................................................ 3-23 3.2.2.1 Salmon .................................................................................................................... 3-23 3.2.2.2 Pacific Halibut ........................................................................................................ 3-27 3.2.2.3 Dungeness Crab ...................................................................................................... 3-27 3.2.3 Protected Species ................................................................................................................
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