3/5/2021 Modifications to Gray Triggerfish Catch Levels Final Framework Action to the Fishery Management Plan for Reef Fish Resources of the Gulf of Mexico Including Environmental Assessment, Regulatory Impact Review, and Regulatory Flexibility Analysis March 2021 This is a publication of the Gulf of Mexico Fishery Management Council Pursuant to National Oceanic and Atmospheric Administration Award No. NA20NMF4410011. This page intentionally blank ENVIRONMENTAL ASSESSMENT COVER SHEET Name of Action Framework Action to the Fishery Management Plan for Reef Fish Resources in the Gulf of Mexico: Modifications to Gray Triggerfish Catch Levels including Environmental Assessment, Regulatory Impact Review, and Regulatory Flexibility Act Analysis. Responsible Agencies and Contact Persons Gulf of Mexico Fishery Management Council (Council) 813-348-1630 4107 W. Spruce Street, Suite 200 813-348-1711 (fax) Tampa, Florida 33607 [email protected] Carly Somerset ([email protected]) Gulf Council Website National Marine Fisheries Service (Lead Agency) 727-824-5305 Southeast Regional Office 727-824-5308 (fax) 263 13th Avenue South SERO Website St. Petersburg, Florida 33701 Kelli O’Donnell ([email protected]) Type of Action ( ) Administrative ( ) Legislative ( ) Draft (X) Final This Environmental Assessment is being prepared using the 2020 CEQ NEPA Regulations. The effective date of the 2020 CEQ NEPA Regulations was September 14, 2020, and reviews begun after this date are required to apply the 2020 regulations unless there is a clear and fundamental conflict with an applicable statute. 85 Fed. Reg. at 43372-73 (§§ 1506.13, 1507.3(a)). This Environmental Assessment began on January 28, 2021, and accordingly proceeds under the 2020 regulations. Modifications to i Gray Triggerfish Catch Levels ABBREVIATIONS USED IN THIS DOCUMENT ABC acceptable biological catch ACL annual catch limit ACT annual catch target ALS Accumulated Landings System AM accountability measures AP Advisory Panel APAIS Access Point Angler Intercept Survey BEA U.S. Bureau of Economic Analysis CFpA cash flow per angler CHTS Coastal Household Telephone Survey Council Gulf of Mexico Fishery Management Council CS consumer surplus CEQ Council on Environmental Quality DPS distinct population segment EA environmental assessment EEZ Exclusive Economic Zone EFH essential fish habitat EIS environmental impact statement E.O. Executive Order EJ Environmental Justice ESA Endangered Species Act F fishing mortality FES Fishing Effort Survey FL fork length FMP fishery management plan FSSI Fish Stock Sustainability Index GDP gross domestic product Gulf Gulf of Mexico Fishery gw gutted weight HAPC Habitat Areas of Particular Concern IPCC Intergovernmental Panel on Climate Change MMPA Marine Mammal Protection Act mp million pounds MRFSS Marine Recreational Fisheries Statistics Survey MRIP Marine Recreational Information Program Magnuson-Stevens Act Magnuson-Stevens Fishery Conservation and Management Act MSST minimum stock size threshold MSY maximum sustainable yield NEPA National Environmental Policy Act NMFS National Marine Fisheries Service NOAA National Oceanic and Atmospheric Administration Opinion Biological Opinion OFL overfishing limit OY optimum yield Modifications to ii Gray Triggerfish Catch Levels PAH polycyclic aromatic hydrocarbons PS producer surplus pw product weight Reef Fish FMP Fishery Management Plan for the Reef Fish Resources of the Gulf of Mexico RFA Regulatory Flexibility Act RFAA Regulatory Flexibility Act Analysis RIR Regulatory Impact Review RQ regional quotient SDC status determination criteria SEAMAP Southeast Area Monitoring and Assessment Program Secretary Secretary of Commerce SEDAR Southeast Data Assessment and Review SEFSC Southeast Fishery Science Center SPR spawning potential ratio SRHS Southeast Region Headboat Survey SSC Scientific and Statistical Committee SSRG Social Science Research Group TL total length TNR trip net revenue ww whole weight Modifications to iii Gray Triggerfish Catch Levels TABLE OF CONTENTS Environmental Assessment Cover Sheet ......................................................................................... i Abbreviations Used in this Document ............................................................................................ ii Table of Contents ........................................................................................................................... iv List of Tables ................................................................................................................................. vi List of Figures ............................................................................................................................... vii Chapter 1. Introduction ............................................................................................................... 1 1.1 Background ....................................................................................................................... 1 1.2 Purpose and Need ............................................................................................................. 5 1.3 History of Management .................................................................................................... 5 Chapter 2. Management Alternatives ......................................................................................... 7 2.1 Action 1 – Modify the Gray Triggerfish ABC, ACLs, and ACTs .................................... 7 Chapter 3. Affected Environment ............................................................................................... 9 3.1 Description of the Physical Environment ......................................................................... 9 3.2 Description of the Biological/Ecological Environment .................................................. 11 3.2.1 Gray Triggerfish....................................................................................................... 11 3.2.2 General Information on Reef Fish Species .............................................................. 13 3.3 Description of the Economic Environment ..................................................................... 19 3.3.1 Commercial Sector................................................................................................... 19 3.3.2 Recreational Sector .................................................................................................. 24 3.4 Description of the Social Environment ........................................................................... 32 3.4.1 Commercial Fishing ................................................................................................. 33 3.4.2 Recreational Fishing ................................................................................................ 35 3.4.3 Environmental Justice Considerations ..................................................................... 37 3.4.4 Community Social Vulnerability Indices................................................................ 38 3.5 Description of the Administrative Environment ........................................................ 39 3.5.1 Federal Fishery Management ................................................................................... 39 3.5.2 State Fishery Management .................................................................................. 40 Chapter 4. Environmental Consequences ................................................................................. 41 4.1 Action 1: Modify the Gray Triggerfish ABC, ACLs, and ACTs .................................... 41 4.1.1 Effects on the Physical Environment ....................................................................... 41 4.1.2 Effects on the Biological Environment .................................................................... 42 4.1.3 Effects on the Economic Environment .................................................................... 43 4.1.4 Effects on the Social Environment .......................................................................... 44 Modifications to iv Gray Triggerfish Catch Levels 4.1.5 Effects on the Administrative Environment ............................................................ 45 4.2 Cumulative Effects Analysis .......................................................................................... 45 Chapter 5. Regulatory Impact Review ...................................................................................... 49 5.1 Introduction .................................................................................................................... 49 5.2 Problems and Objectives ................................................................................................ 49 5.3 Description of Fisheries ................................................................................................. 49 5.4 Impacts of Management Measures ................................................................................ 49 5.4.1 Action 1: Modify the Gray Triggerfish ABC, ACLs, and ACTs............................ 49 5.5 Public and Private Costs of Regulations ........................................................................ 50 5.6 Determination of Significant Regulatory Action ............................................................ 50 Chapter 6. Regulatory Flexibility Act Analysis ........................................................................ 51 6.1 Introduction ...................................................................................................................