6/12/17 Modifications to Mutton Snapper and Gag Management Measures 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 Act Analysis June 2017 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 Framework Action to the Fishery Management Plan for Reef Fish Resources in the Gulf of Mexico to Modify Mutton Snapper and Gag Management Measures 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 2203 North Lois Avenue, Suite 1100 813-348-1711 (fax) Tampa, Florida 33607 [email protected] Ryan Rindone ([email protected]) http://www.gulfcouncil.org 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 Rich Malinowski ([email protected]) Type of Action ( ) Administrative ( ) Legislative ( ) Draft (X) Final Modifications to Mutton Snapper ii And Gag Management Measures ABBREVIATIONS USED IN THIS DOCUMENT A50 Age at which 50% if individuals are mature ABC Acceptable biological catch ACL Annual catch limit ACT Annual catch target ALS Accumulated Landings System AMs Accountability measures AP Advisory Panel BPA Bycatch Practicability Analysis Councils Fishery Management Councils CS consumer surplus DPS distinct population segment DWH Deepwater Horizon Oil Spill EA Environmental Assessment EEZ Exclusive Economic Zone EFH Essential Fish Habitat EIS Environmental impact statement ELMR Estuarine Living Marine Resources EJ Environmental Justice E.O. Executive Order ESA Endangered Species Act F Instantaneous rate of fishing mortality FEIS final environmental impact statement FL Fork length F30% SPR Fishing mortality corresponding to 30% spawning potential ratio FMP Fishery Management Plan FTE full-time equivalent FWC Florida Fish and Wildlife Commission FWRI Florida Wildlife Research Institute GSAD Gulf and South Atlantic Dealer GSI gonadosomatic index Gulf Gulf of Mexico Gulf Council Gulf of Mexico Fishery Management Council gw gutted weight HAPC Habitat Area of Particular Concern IFQ individual fishing quotient IRFA Initial regulatory flexibility analysis L50 Length at which 50% if individuals are mature M Mortality Magnuson-Stevens Act Magnuson-Stevens Fishery Conservation and Management Act MFMT Maximum fishing mortality threshold MMPA Marine Mammal Protection Act mp Million pounds MRFSS Marine Recreational Fisheries Statistics Survey Modifications to Mutton Snapper iii And Gag Management Measures MRIP Marine Recreational Information Program MSST Minimum stock size threshold MSY Maximum sustainable yield NMFS National Marine Fisheries Service NOAA National Oceanic and Atmospheric Administration NOR net-operating revenue NOS National Oceanic Service OFL Overfishing level Opinion Biological Opinion OY Optimum yield PAH polycyclic aromatic hydrocarbons PS producer surplus RFA Regulatory Flexibility Act of 1980 RIR Regulatory impact review RQ Regional Quotient SBPR Spawning Biomass per Recruit SEAMAP Southeast Area Monitoring and Assessment Program Secretary Secretary of Commerce SEDAR Southeast Data, Assessment and Review SEFSC Southeast Fisheries Science Center SEIS supplemental environmental impact statement SERO Southeast Regional Office SMZ Special Management Zone South Atlantic Council South Atlantic Fishery Management Council SRHS Southeast Region Headboat Survey SSC Scientific and Statistical Committee SSRG Social Science Research Group SPR Spawning potential ratio TL total length TPWD Texas Parks and Wildlife Department USFWS United States Fish and Wildlife Service VOC volatile organic compound WFS West Florida Shelf ww Whole weight YPR Yield per recruit Modifications to Mutton Snapper iv And Gag Management Measures TABLE OF CONTENTS Environmental Assessment Cover Sheet ........................................................................................ ii Abbreviations Used In This Document.......................................................................................... iii Table of Contents ............................................................................................................................ v List of Tables ............................................................................................................................... viii List of Figures ................................................................................................................................. x Chapter 1. Introduction .................................................................................................................. 1 1.1 Background .......................................................................................................................... 1 1.2 Purpose and Need ................................................................................................................. 9 1.3 History of Management ........................................................................................................ 9 Chapter 2. Management Alternatives .......................................................................................... 13 2.1 Action 1 - Establish Annual Catch Limits for Gulf of Mexico Apportioned Mutton Snapper ............................................................................................................................... 13 2.2 Action 2 - Modify the Gulf Mutton Snapper Recreational Bag Limit ............................... 16 2.3 Action 3 - Modify the Mutton Snapper Minimum Size Limit in the Gulf ......................... 18 2.4 Action 4 - Modify the Commercial Gag Minimum Size Limit in the Gulf ....................... 20 Chapter 3. Affected Environment ................................................................................................ 23 3.1 Description of the Physical Environment ........................................................................... 23 3.2 Description of the Biological/Ecological Environment ..................................................... 24 3.2.1 Mutton Snapper ....................................................................................................... 25 3.2.2 Gag .......................................................................................................................... 27 3.2.3 General Information on Reef Fish Species ............................................................. 29 3.2.4 Protected Species .................................................................................................... 32 3.2.5 Bycatch ................................................................................................................... 40 3.2.6 Other Species Affected ........................................................................................... 40 3.3 Description of the Economic Environment ........................................................................ 40 3.3.1 Commercial Sector.................................................................................................. 40 3.3.2 Recreational Sector ................................................................................................. 45 3.4 Description of the Social Environment .............................................................................. 50 3.4.1 Landings by State .................................................................................................... 51 3.4.2 Fishing Communities .............................................................................................. 51 3.4.3 Environmental Justice Considerations .................................................................... 57 3.5 Description of the Administrative Environment ................................................................ 58 Modifications to Mutton Snapper v And Gag Management Measures 3.5.1 Federal Fishery Management .................................................................................. 58 3.5.2 State Fishery Management ...................................................................................... 59 Chapter 4. Environmental Consequences .................................................................................... 60 4.1 Action 1 - Establish Annual Catch Limits for Gulf of Mexico Apportioned Mutton Snapper ............................................................................................................................... 60 4.1.1 Direct and Indirect Effects on the Physical Environment ....................................... 61 4.1.2 Direct and Indirect Effects on the Biological/Ecological Environment ................. 63 4.1.3 Direct and Indirect Effects on the Economic Environment .................................... 63 4.1.4 Direct and Indirect Effects on the Social Environment .......................................... 66 4.1.5 Direct and Indirect Effects on the Administrative Environment ............................ 67 4.2 Action 2 - Modify the Gulf Mutton Snapper Recreational Bag Limit ............................... 68 4.2.1 Direct and Indirect Effects on the Physical Environment ......................................