TAB E, NO. 8 1/16/2019 Carryover Provisions and Framework Modifications © Shutterstock Draft Public Hearing Generic Amendment to the Fishery Management Plans for Reef Fish, Coastal Migratory Pelagics, Coral and Coral Reefs, and Spiny Lobster in the Gulf of Mexico January 2019 This is a publication of the Gulf of Mexico Fishery Management Council Pursuant to National Oceanic and Atmospheric Administration Award No. NA15NMF4410011. This page intentionally blank ENVIRONMENTAL ASSESSMENT COVER SHEET Name of Action Draft Generic Amendment to: Fishery Management Plan for the Reef Fish Resources of the Gulf of Mexico; Fishery Management Plan for Coastal Migratory Pelagic Resources of the Gulf of Mexico and South Atlantic; Fishery Management Plan for the Coral Resources of the Gulf of Mexico; and Fishery Management Plan for the Spiny Lobster Resources of the Gulf of Mexico and South Atlantic. Responsible Agencies and Contact Persons Gulf of Mexico Fishery Management Council (Council) 813-348-1630 2203 North Lois Avenue, Suite 1100 813-348-1711 (fax) Tampa, Florida 33607 [email protected] Ryan Rindone ([email protected]) http://www.gulfcouncil.orgn South Atlantic Fishery Management Council 866-723-6210 4055 Faber Place, Suite 201 843-769-4520 (fax) North Charleston, South Carolina 29405 http://www.safmc.net John Carmichael ([email protected]) National Marine Fisheries Service (Lead Agency) 727-824-5305 Southeast Regional Office 727-824-5308 (fax) 263 13th Avenue South http://sero.nmfs.noaa.gov St. Petersburg, Florida 33701 Richard Malinowski ([email protected]) Karla Gore ([email protected]) Type of Action ( ) Administrative ( ) Legislative (X) Draft ( ) Final Summary/Abstract Carryover Provision ii ABBREVIATIONS USED IN THIS DOCUMENT ABC acceptable biological catch ACL annual catch limit ACT annual catch target AM accountability measure Council Gulf of Mexico Fishery Management Council CMP coastal migratory pelagics CV coefficient of variation EA environmental assessment ESA Endangered Species Act FMP fishery management plan GMFMC Gulf of Mexico Fishery Management Council Gulf Gulf of Mexico IFQ individual fishing quota IRFA initial regulatory flexibility analysis MFMT maximum fishing mortality threshold MSST minimum stock size threshold MSY maximum sustainable yield NMFS National Marine Fisheries Service NS1 National Standard 1 guidelines OFL Overfishing limit OY optimum yield P* probability of overfishing Q* qualitative measure of relative risk PDF probability density function RA Regional Administrator RIR regulatory impact review RFA regulatory flexibility analysis SEFSC Southeast Fisheries Science Center SPR spawning potential ratio SSB spawning stock biomass SSBR spawning stock biomass per recruit SSC Science and Statistical Committee TAC total allowable catch TL total length Carryover Provision iii TABLE OF CONTENTS Environmental Assessment Cover Sheet ........................................................................................ ii Abbreviations Used in this Document ........................................................................................... iii Table of Contents ........................................................................................................................... iv List of Tables ............................................................................................................................... viii List of Figures ................................................................................................................................. x Fishery Impact Statement .............................................................................................................. xi Chapter 1. Introduction ............................................................................................................... 1 1.1 Background ....................................................................................................................... 1 1.2 Objectives of the Reef Fish Fishery Management Plan .................................................... 4 1.3 Purpose and Need ............................................................................................................. 4 1.4 History of Management .................................................................................................... 5 Chapter 2. Management Alternatives ....................................................................................... 14 2.1 Action 1 - Eligibility for a Carryover Provision for Managed Reef Fish and Coastal Migratory Pelagic (CMP) Stocks in the Gulf of Mexico (Gulf) ........................................... 14 2.2 Action 2 - Adjustment in the Carryover Provision Accounting for Management Uncertainty ............................................................................................................................ 20 2.3 Action 3 - Modify the Framework Procedures for Gulf Council FMPs ..................... 23 Chapter 3. Affected Environment ............................................................................................. 26 3.1 Description of the Fishery ............................................................................................... 26 3.1.1 Coastal Migratory Pelagics ................................................................................. 26 3.1.2 Reef Fish ............................................................................................................. 28 3.1.3 Spiny Lobster ...................................................................................................... 37 3.1.4 Coral and Coral Reefs ......................................................................................... 42 3.1.5 Status of the Stocks ............................................................................................. 42 3.2 Description of the Physical Environment ............................................................... 44 3.2.1 Coastal Migratory Pelagics ................................................................................. 45 3.2.2 Reef Fish ............................................................................................................. 45 3.2.3 Spiny Lobster ...................................................................................................... 46 3.2.4 Corals and Coral Reefs ........................................................................................ 46 3.3 Description of the Biological/Ecological Environment .............................................. 48 3.3.1 Coastal Migratory Pelagics ................................................................................. 48 3.3.2 Reef Fish ............................................................................................................. 48 3.3.3 Spiny Lobster ...................................................................................................... 51 Carryover Provision iv 3.3.4 Coral and Coral Reefs ......................................................................................... 52 3.3.5 General Information ............................................................................................ 53 3.4 Description of the Economic Environment ................................................................ 57 3.4.1 Reef Fish Fishery ................................................................................................ 57 3.4.2 CMP Fishery ....................................................................................................... 66 3.4.3 Spiny Lobster Fishery ......................................................................................... 75 3.4.4 Corals .................................................................................................................. 80 3.5 Description of the Social Environment ...................................................................... 80 3.5.1 Environmental Justice Considerations ..................................................................... 90 3.6 Description of the Administrative Environment ........................................................ 92 3.6.1 Federal Fishery Management .............................................................................. 92 3.6.2 State Fishery Management .................................................................................. 92 Chapter 4. Environmental Consequences ................................................................................ 94 4.1 Action 1: Eligibility for a Carryover Provision for Managed Reef Fish and Coastal Migratory Pelagic (CMP) Stocks in the Gulf of Mexico (Gulf) ........................................... 94 4.1.1 Direct and Indirect Effects on the Physical Environment ................................... 94 4.1.2 Direct and Indirect Effects on the Biological/Ecological Environment .............. 94 4.1.3 Direct and Indirect Effects on the Economic Environment ................................ 95 4.1.4 Direct and Indirect Effects on the Social Environment....................................... 96 4.1.5 Direct and Indirect Effects on the Administrative Environment......................... 98 4.2 Action 2: Adjustment in the Carryover Provision Accounting for Management Uncertainty ............................................................................................................................ 99 4.2.1 Direct and Indirect Effects on the Physical Environment ................................... 99 4.2.2 Direct and Indirect Effects on