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AMENDMENT NUMBER 1 TO SPINY LOBSTER FISHERY MANAGEMENT PLAN FOR THE GULF OF MEXICO AND SOUTH ATLANTIC INCLUDING ENVIRONMENTAL ASSESSMENT, SUPPLEMENTAL REGULATORY IMPACT REVIEW, AND INITIAL REGULATORY FLEXIBILITY ANALYSIS FEBRUARY 1987 GULF OF MEXICO. FISHERY MANAGEMENT COUNCIL LINCOLN CE-NTER, SUITE 881 5401 WEST KENNEDY BOULEVARD · TAMPA, FLORIDA 33609. (813)228-2815 AND SOUTH ATLANTIC FISHERY MANAGEMENT COUNCIL 1 SOUTHPARK CIRCLE CHARLESTON, SOUTH CAROLINA 29407 (803)571-4366 t. 2.0. TABLE OF CCNTENTS Section Page 1.0. Title Page •····•••••••••••••••••····••••••••••••••••• 1 2.0. Table of Contents .......•...........•••.....•.•...•. 2 3.0. Sunmary • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • S 3.1. Fishery••••••·••••••••;••••••••··••••••••••••••••••· s 3.2. Management Un It ••••••••••••••••••••••••••••••••••••• s 3.3. Maximum Sustainable Yield ........................... s 3.4. Opt I mum YI e Id ••••••••••••••••••••••••••••••••••••••• s 3.5. EDAH and TALFF.•••••••••••••••••••••••••••••••••••••• s 3.6. Projected Benefits •••••••••••••••••••••••••••••••••• 6 3.7. Issues in the Fishery••••••••••••··••••••••••••••••• 6 3.8. Management Object Ives ••••••••••••••••••••••••••••••• 7 3.9. Current Management Measures ••••····••••••••••••••••• 7 3. 1o. Proposed Management Measures•••••·•••••••••••••••••• 8 3. 11 • Rejected Management Measures•••••·•••••••••••••••••· 9 3.12. Recomnendatlons .................................... 11 3.12.1. Recomnendations to the Secretary of Comnerce •••••• 11 3.12.2. Recomnendations to the States••••••••••••••••••••· 11 4.0. Introduct Ion ·················~·-····················· 12 4.1. Management Objectives•••••••••••••••••••••••••••••••• 12 Problems In the Fishery Requiring Plan Amendment ••••• 12 4.3. Achievement of Stated Objectives .................... 14 5.0. Description and Status of the Spiny Lobster Fishery and Stock ■■••·•••••••••••••••••••••••••••••••• 16 S. 1. Description of Data Available .......•........•..... 16 s.2. Description of Fishery and Participants ·•••••••••••• 16 2 S.3. Trends In the Fishery .............................. 17 S.3.1. Landings and Effort ............................... 17 Prices and Costs .................................. 18 S.4. Status of Spiny Lobster Stock •·••••·••••·••••·••••·• 18 S .4 .1 • Stock Assessment ................................. 18 Assessment of Handlln1 Practices of Und e r s Iz e Lob s t e r s • • • • • • • • • • • • • • • • • • • .• • • • • • • • • • • • • • 20 S.S. Status of Spanish Lobster Stock ..................... 22 5.6. Description of Related Habitat••••••••••••••••••••••~ 23 S.6.1. Condition of the Habitat••••••••••••••••••••••••••• 23 Habitat Areas of Particular Concern•••••••••••••••• 24 S.6.3. Habitat Protection Programs•••••••••••••••••••••••• 25 6.o. Supplemental Re1ulatory ,.,.,act Review and lnltlal Re1ulatory Flexlblllty Analysis •••••••••••••••••••••• 41 Introduct Ion ........................................ 41 Methodology ......................................... 42 Regulatory ,.,.,acts of Proposed and Alternative .Mana1ement Measures •••••••••••••••••••••• •.•......... 43 6.3.1. Use of Underslze Lobsters as Attractants ••••••••••• 43 6.3.2. Conmerclal Flshln1 Permit••••••••••·•••••••••••••••• 49 6.3.3. Recreational Flshln1 Permit•••••••••••••••••••••••• 51 6.3.4. Re1ular Flshln1 Season - Recreational Possession Limit•••••••••••·••••••••••••••••••••••• 53 6.3.5. Recreational Flshln1 Season - Recreational Possession Limit••••••••••••••••••••••••••••••••••• 55 6.3.6. Recreational Flshin1 Season Duration••••••••••••••• 56 6.3.7. Closed Season Duration••••••••••••••••••••••••••~•• 58 3 6.3.8. Closed Season Violations ••••••••••••••••••••••••••• 60 6.3.9. Egg-Bearing Lobsters ••••••••••••••••••••••••••••••• 62 6 • 3 • 1 0 • Mi n i ITl..lm S i z e L Im I t • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • 64 6.3.11. Tai I Separation ••••••••••••••••••• ; ••••••••••••••• 65 6.3.12. Slipper (Spanish) Lobster ••••••••••••••••••••••••• 7 • 0 • Re Comne n d at I On s • • • • • •. • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • 84 7 .1 • Special Reconmendations to the Secretary••••••••••••• 84 1.2. Special Recomnendatlons to the States •••••••••••••••• 84 8.0. Related Federal Laws ................................. 85 8.1 • Paperwork Reduction Act 85 8.1.1. Proposed Data Collection Program ................. 85 Estimate of Reporting Burden 85 8 .2. Endangered Species and Marine Marnnal Protection AG ts .•••.••••••••••....•••.•••••••••••••••.••••••••• 85 Coastal Zone Management Act 85 8.4. National Environmental Polley Act 86 9.0. Bibliography ••••••••••••••••••••••••••••••••••••••••• 88 4 3.0. SUMMARY 3.1. Fishery The spiny lobster fishery consists of the spiny lobster Panulirus argus, Including an incidental. catch of the spotted spiny lobster, Panullrus guttatus, and smooth tall lobster, Panullrus lae vic:auda. and the slipper (Spanish) lobster fishery consists of the slipper lobster Sc:yllarides nodlfer. including an incidental catch of Sc:yllarides aeguinoc:tialis, which inhabit or migrate through the coastal waters and the exclusive economic: zone (EEZ) of the Gulf of- Mexico and the South-Atlantic: areas and which are pursued by commercial and recreational fishermen.· 3.3. M anage·m ent Unit The management unit for which federal regulations will be implemented shall be the spiny lobster Panullrus argus and the slipper lobster Sc:yllarides nodlfer in the EEZ within the areas of authority of the Gulf of Mexico and South Atlantic: Counc:ns. 3.3. Maximum Sustainable Yield · Maximum sustainable yield (MSY) for spiny lobster Is estimated as 13.7 million pounds annually for the maximum yield per recruit size of 3.S Inches carapace length. Quantitative estimation of MSY for Spanish lobster is not possible at this time due to the lack of population data, therefore It Is established as equal to Optimum Yield. 3.4. Optimum Yield Optl mum yield (OY) is specified to be all spiny lobster more than 3.0 inches carapace length or not less than S.S inches tail length that can be legally harvested by commercial and recreational fishermen given existing technology and prevailing economic: conditions. Optimum yield Is estimated at 9.S million pounds. Optimum yield for the slipper lobster Is specified to be all non egg-bearing slipper lobster · that can be legally harvested by .comm erc:lal and recreational flsherm en given existing tec:hnoloiy and prevailing economic: c:ondltion·s. No quantitative estimate of optimum yield. ls availa.ble at this tlm e due to the absence of popu!atlon data. 3.S. Expected Domestic: Annual Harvest (EDAH) and Total Allowable Level of Foreign Fishing (TALFF) Spiny lobster EDAH = 9.S million pounds. TALFF = O.O pounds. Slipper lobster EDAH = Optimum yield. TALFF = 0.0 pounds. 5 3.6. ProJec:ted Benefits The following projec:ted benefits, based on the spiny lobster fishery, were adapted from the Fishery Management Plan for Spiny Lobster in the Gulf of Mexic:o and South Atlantic: (FMP) but were not ac:hieved due to problems outlined in this amendment. Therefore the projec:ted benefits of the FMP also apply to this amendment and will be ac:hleved with effec:tlve industry c:ompllanc:e, enforc:ement, and government monitoring of the results of • management measures implemented by this amendment. 1. An lnc:rease in annual yield of up to 1.5 million pounds from the present estimated legal c:atc:h of 8.0 million pounds to the ED AH of 9.5 million pounds by 1988 fishing season. 2. An eventual lnc:rease In annual yield of 4.0 million pounds from the present estimated legal c:atc:h of 8.0. million pounds to the MSY of 13.7 million pounds with effec:tive enforc:ement through,out the fishery and the development of alternative attrac:tants for use in traps. 3. An inc:rease in annual revenue to the harvesting sec:tor of up to $3.3 million and a total impac:t on the national ec:onomy of up to $7.3 million by 1988 fishing season. 4. An inc:rea·se ·1n employment opportunities by 371 man-years. The projec:ted benefits from management of the slipper lobster fishery lnc:lude c:ontlnuation of the fishery and assoc:lated employment by preventing overfishing of a population sensitive to fishing mortality. 3.7. Issues In the Fishery 1. The number of undersize lobsters taken and sold Illegally c:ontlnues to be signific:ant. Enforc:ement of size limit regulations will be a major c:onsideration when developing proc:edures for implementing management measures. ~- Whereas the present prac:tlc:es involving the.use of undersize lobsters as attrac:tants is c:ausing signlflc:ant mortality to undersize lobsters and subsequent loss in yield to the fishery, there· is c:ontroversy over the methods to reduc:e the mortallty of undersize lobsters used as attrac:tants In traps. 3. There is an inc:reaslng number of traps in the fishery. 4. lnc:ompatlble Federal and State regulations hinder effec:tlve enforc:ement of the minimum size limit and the prohibition against spearing lobsters. S. The abandonment of traps during the c:losed season have c:reated a slgnlflc:ant •ghost fishing• mortality that represents a loss in yield to the fishery. 6. The major user groups of the resourc:e are not adequately defined to Insure fair and equitable treatment. The existing Florida permit system Is not sufflc:lent In Identifying major user groups resulting In an lnablllsy to properly assess the I mpac:ts of alternative management measures on the users of the resourc:e. In addition, data on rec:reatlonal
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