Atlantic States Marine Fisheries Commission Draft Amendment 3 to the Interstate Fishery Management Plan for Atlantic Menhaden For Public Comment August 2017 Vision: Sustainably Managing Atlantic Coastal Fisheries DRAFT DOCUMENT FOR PUBLIC COMMENT Amendment 3 to the Interstate Fishery Management Plan for Atlantic Menhaden Prepared by Atlantic States Marine Fisheries Commission Atlantic Menhaden Plan Development Team Plan Development Team Members: Jeff Brust, New Jersey Department of Fish and Wildlife Joe Cimino, Virginia Marine Resources Commission Jesse Hornstein, New York Department of Environmental Conservation Nicole Lengyel, Rhode Island Department of Environmental Management Derek Orner, National Marine Fisheries Service Harry Rickabaugh, Maryland Department of Natural Resources Winnie Ryan, Maritime Research Andrew Scheld, Virginia Institute for Marine Science Krista Shipley, Florida Fish and Wildlife Conservation Commission Megan Ware (Chair), Atlantic States Marine Fisheries Commission This is a report of the Atlantic States Marine Fisheries Commission pursuant to U.S. Department of Commerce, National Oceanic and Atmospheric Administration Award No. NA15NMF4740069. ii DRAFT DOCUMENT FOR PUBLIC COMMENT The Atlantic States Marine Fisheries Commission seeks your input on Draft Amendment 3 to the Atlantic Menhaden Fishery Management Plan. The public is encouraged to submit comments regarding this document during the public comment period. Comments must be received by 5:00 PM (EST) on October 24, 2017. Regardless of when they were sent, comments received after that time will not be included in the official record. The Atlantic Menhaden Management Board will consider public comment on this document before finalizing Amendment 3. You may submit public comment by attending a public hearing held in your state or jurisdiction or mailing, faxing, or emailing written comments to the address below. Comments can also be referred to your state’s members on the Atlantic Menhaden Management Board or Atlantic Menhaden Advisory Panel; however, only comments received at a public hearing or written comments submitted to the Commission will become part of the public comment record. Mail: Megan Ware Email: [email protected] Atlantic States Marine Fisheries Commission (Subject: Draft Amd. 3) 1050 N. Highland Street, Suite 200 A-N Phone: 703.842.0740 Arlington VA. 22201 Fax: 703.842.0741 If your organization is planning to release an action alert in response to Draft Amendment 3, please contact Megan Ware at 703.842.0740, so she can work with you to develop a unique subject line to enable us to better organize and summarize incoming comments for Board review. iii DRAFT DOCUMENT FOR PUBLIC COMMENT The timeline for completion of Amendment 3 is as follows: Oct Nov 2016 – Feb Mar – Aug Aug – Oct Nov 2016 Jan 2017 2017 July 2017 2017 2017 2017 Approval of Draft PID by Board X Public review and comment on PID X Board review of public comment; Board direction on what to include X in Draft Amendment 3 Preparation of Draft Amendment 3 X Review and approval of Draft Amendment 3 by Board for public X comment Public review and comment on X Draft Amendment 3 Current Step Board review of public comment X on Draft Amendment 3 Review and approval of the final Amendment 3 by the Board, Policy X Board and Commission iv DRAFT DOCUMENT FOR PUBLIC COMMENT Table of Contents 1.0 INTRODUCTION ......................................................................................................................... 1 1.1 Background Information ....................................................................................................... 1 1.1.1 Statement of Problem.................................................................................................... 1 1.1.2 Benefits of Implementation ........................................................................................... 2 1.2 Description of the Resource ................................................................................................. 3 1.2.1 Species Life History ........................................................................................................ 3 1.2.2 Stock Assessment Summary .......................................................................................... 7 1.2.3 Current Stock Status ...................................................................................................... 9 1.3 Description of the Fishery ................................................................................................... 10 1.3.1 Commercial Fishery...................................................................................................... 10 1.3.2 Recreational Fishery ..................................................................................................... 14 1.3.3 Subsistence Fishing ...................................................................................................... 14 1.3.4 Non-Consumptive Factors ........................................................................................... 14 1.3.5 Interactions with Other Fisheries ................................................................................ 14 1.4 Habitat Considerations ....................................................................................................... 15 1.4.1 Physical Description of Habitat .................................................................................... 15 1.4.2 Environmental Requirements of Atlantic Menhaden .................................................. 17 1.4.3 Identification and Distribution of Essential Habitat .................................................... 20 1.4.4 Anthropogenic Impacts on Atlantic Menhaden and Their Habitat ............................. 21 1.4.5 Description of Programs to Protect, Restore, & Preserve Atlantic Menhaden Habitat ............................................................................................................................................... 22 1.5 Impacts of the Fishery Management Program ................................................................... 23 1.5.1 Biological and Ecological Impacts ................................................................................ 23 1.5.2 Social and Economic Impacts ....................................................................................... 25 2.0 GOALS AND OBJECTIVES ......................................................................................................... 26 2.1 History of Management ...................................................................................................... 26 2.2 Purpose and Need for Action .............................................................................................. 28 2.3 Goal ..................................................................................................................................... 29 2.4 Objectives ............................................................................................................................ 29 2.5 Management Unit ............................................................................................................... 30 2.5.1 Management Area ....................................................................................................... 30 2.6 Reference Points ................................................................................................................. 30 v DRAFT DOCUMENT FOR PUBLIC COMMENT 2.6.1 History of Reference Points ......................................................................................... 30 2.6.2 ASMFC Multi-Species Management Efforts ................................................................. 31 2.6.3 External Guidelines for Forage Fish ............................................................................. 33 2.6.4 Definition of Overfishing and Overfished/Depleted .................................................... 34 2.6.5 Stock Rebuilding Program ............................................................................................ 38 3.0 MONITORING PROGRAM SPECIFICATION .............................................................................. 38 3.1 Commercial Catch and Landings Program .......................................................................... 38 3.1.1 Reduction Fishery Catch Reporting Process ................................................................ 39 3.1.2 Bait Fishery Catch Reporting Process .......................................................................... 39 3.2 Recreational Fishery Catch Reporting Process ................................................................... 40 3.3 For-Hire Fishery Catch Reporting Process .......................................................................... 41 3.4 Social and Economic Collection Programs .......................................................................... 41 3.5 Biological Data Collection Programs ................................................................................... 41 3.5.1 Fishery-Dependent Data Collection ............................................................................. 42 3.5.2 Fishery-Independent Data Collection .......................................................................... 43 3.5.3 Observer Programs ...................................................................................................... 43 3.6 Assessment of Stock Condition ........................................................................................... 43 3.6.1 Assessment of Population Age/Size Structure ............................................................ 43 3.6.2 Assessment of Annual Recruitment ............................................................................. 44 3.6.3 Assessment of Fecundity ............................................................................................. 44 3.6.4 Assessment of Fishing Mortality .................................................................................. 44 3.7 Stocking Program ................................................................................................................ 44 4.0 MANAGEMENT PROGRAM ..................................................................................................... 44 4.1 Recreational Fishery Management Measures .................................................................... 44 4.2 For-Hire Fisheries Management Measures ........................................................................ 44 4.3 Commercial Fishery Management Measures ..................................................................... 45 4.3.1 Total Allowable Catch .................................................................................................. 45 4.3.2 Quota Allocation .......................................................................................................... 46 4.3.3 Quota Transfers ........................................................................................................... 63 4.3.4 Quota Rollovers ........................................................................................................... 65 4.3.5 Incidental Catch and Small Scale Fisheries .................................................................. 66 4.3.6 Episodic Events Set Aside Program .............................................................................. 69 4.3.7 Chesapeake Bay Reduction Fishery Cap ...................................................................... 71 vi DRAFT DOCUMENT FOR PUBLIC COMMENT 4.4 Habitat Conservation and Restoration Recommendations ................................................ 72 4.4.1 Preservation of Existing Habitat .................................................................................. 73 4.4.2 Habitat Restoration and Improvement ....................................................................... 73 4.4.3 Avoidance of Incompatible Activities .......................................................................... 73 4.4.4 Fishery Practices .......................................................................................................... 73 4.5 Alternative State Management Regimes ............................................................................ 74 4.5.1 General Procedures ..................................................................................................... 74 4.5.2 Management Program Equivalency ............................................................................. 74 4.5.3 De Minimis Fishery Guidelines ..................................................................................... 74 4.6 Adaptive Management ....................................................................................................... 76 4.6.1 General Procedures ..................................................................................................... 76 4.6.2 Measures Subject to Change ....................................................................................... 77 4.7 Emergency Procedures ....................................................................................................... 77 4.8 Management Institutions ................................................................................................... 78 4.8.1 Atlantic States Marine Fisheries Commission and ISFMP Policy Board ...................... 78 4.8.2 Atlantic Menhaden Management Board ..................................................................... 78 4.8.3. Atlantic Menhaden Plan Development Team ............................................................. 78 4.8.4 Atlantic Menhaden Plan Review Team ........................................................................ 78 4.8.5 Atlantic Menhaden Technical Committee ................................................................... 79 4.8.6 Atlantic Menhaden Stock Assessment Subcommittee ................................................ 79 4.8.7 Biological Ecological Reference Point Work Group ..................................................... 79 4.8.8 Atlantic Menhaden Advisory Panel.............................................................................. 79 4.8.9 Federal Agencies .......................................................................................................... 80 4.9 Recommendation to the Secretary of Commerce for Complementary Measures in Federal Waters ....................................................................................................................................... 80 4.10 Cooperation With Other Management Institutions ......................................................... 80 5.0 COMPLIANCE ........................................................................................................................... 80 5.1 Mandatory Compliance Elements for States ...................................................................... 81 5.1.1 Regulatory Requirements ............................................................................................ 81 5.2 Compliance Schedule .......................................................................................................... 82 5.3 Compliance Reports ............................................................................................................ 82 5.4 Procedures for Determining Compliance ........................................................................... 82 5.5. Analysis of the Enforceability of Proposed Measures ....................................................... 83 vii DRAFT DOCUMENT FOR PUBLIC COMMENT 6.0 Research Needs ....................................................................................................................... 83 6.1 Stock Assessment and Population Dynamics Research Needs ........................................... 84 6.1.1 Annual Data Collection ................................................................................................ 84 6.1.2 Assessment Methodology............................................................................................ 84 6.2 Habitat Research Needs ...................................................................................................... 85 6.3 Socio-Economic Research Needs ........................................................................................ 85 7.0 PROTECTED SPECIES ................................................................................................................ 85 7.1 Marine Mammal Protection Act Requirements ................................................................. 86 7.2 Endangered Species Act Requirements .............................................................................. 87 7.3 Protected Species with Potential Fishery Interactions ....................................................... 87 7.3.1 Marine Mammals ......................................................................................................... 88 7.3.2 Sea Turtles .................................................................................................................... 93 7.3.3 Atlantic Sturgeon ......................................................................................................... 96 7.3.4 Seabirds ........................................................................................................................ 97 7.4 Proposed Federal Regulations/Actions Pertaining to the Relevant Protected Species ..... 97 7.5 Potential Impacts to Atlantic Coastal State and Interstate Fisheries ................................. 97 8.0 REFERENCES ............................................................................................................................ 99 9.0 TABLES ................................................................................................................................... 110 10.0 FIGURES ............................................................................................................................... 118 Appendix 1…………………………………………………………………………………………………………………………….123 Appendix 2…………………………………………………………………………………………………………………………….127 viii DRAFT DOCUMENT FOR PUBLIC COMMENT 1.0 INTRODUCTION The Atlantic States Marine Fisheries Commission (ASMFC), under the authority of the Atlantic Coastal Fisheries Cooperative Management Act, is responsible for managing Atlantic menhaden (Brevoortia tyrannus) from Maine through Florida. ASMFC has coordinated the interstate management of Atlantic menhaden in state waters (0-3 miles) since 1981. Amendment 3 to the Interstate Fishery Management Plan for Atlantic menhaden replaces Amendment 2 (ASMFC, 2013). Management authority in the exclusive economic zone (3-200 miles from shore) lies with NOAA Fisheries. 1.1 BACKGROUND INFORMATION At their May 2015 meeting, the Atlantic Menhaden Management Board (Board) initiated the development of Amendment 3 to the Atlantic Menhaden FMP to pursue the development of ecological reference points (ERPs) and revisit allocation methods. The Board approved the Amendment 3 Public Information Document for public comment in October 2016. Public comment was received and hearings were held between December 2016 and January 2017. At their February 2017 meeting, the Board tasked the Plan Development Team (PDT) with developing Draft Amendment 3. 1.1.1 Statement of Problem 1.1.1.1 Ecological Reference Points Amendment 2 established single-species reference points to manage the menhaden stock. These reference points were based on maximum spawning potential (MSP) and included a measure of fishing mortality (F) and spawning stock biomass (SSB) to determine an overfishing and overfished status. Per Amendment 2, overfishing was defined by a target and threshold of F and F , respectively,while an overfished stock was defined by a target and 30%MSP 15%MSP threshold of SSB and SSB , respectively. 30%MSP 15%MSP In 2015, the Board approved a new Atlantic Menhaden Benchmark Stock Assessment which updated the reference points for Atlantic menhaden in order to provide a better measure of sustainability (SEDAR, 2015). Specifically, the reference points were changed to be the maximum and median geometric mean fishing mortality rate for ages 2-4 during 1960-2012, a period deemed sustainable. Corresponding reference points based on fecundity (FEC) were also established to determine an overfished status. This method was applied to the 2017 Stock Assessment Update. Resulting reference points are an overfishing threshold and target of F 21% and F ,respectively,and an overfished threshold and target of FEC and FEC , 36% 21% 36% respectively. As of 2016, the terminal year used in the 2017 Stock Assessment Update, the stock is not overfished and overfishing is not occurring. An important outcome of the 2015 Stock Assessment and Peer Review Report was the high priority given to the development of ERPs for Atlantic menhaden management. Menhaden serve an important role in the marine ecosystem as they convert phytoplankton into protein 1 DRAFT DOCUMENT FOR PUBLIC COMMENT and, in turn, provide a food source to a variety of species including larger fish (e.g., weakfish, striped bass, bluefish, cod), birds (e.g., bald eagles, osprey), and marine mammals (e.g., humpback whales, bottlenose dolphin). As a result, changes in the abundance of menhaden may have implications for the marine ecosystem. ERPs provide a method to assess the status of menhaden not only with regard to the sustainability of human harvest, but also with regard to their interactions with predators and the status of other prey species. This method accounts for several species’ menhaden predation requirements when setting an overfished and overfishing threshold for menhaden. The benefit of this approach is that it allows fishery managers to consider the harvest of menhaden within a broad ecosystem context, which includes other fish, birds, mammals, and humans who utilize and depend on marine resources. 1.1.1.2 Allocation Amendment 2 established a first-ever commercial total allowable catch (TAC) for Atlantic menhaden and divided this catch into commercial quotas for participating jurisdictions from Maine through Florida. The allocation formula assigns each state a percentage of the TAC based on each jurisdiction’s average landings between 2009 and 2011. Since it was implemented in 2013, the quota system has maintained the annual directed harvest of menhaden below the annual coastwide TAC set by the Board. Amendment 2 requires allocation to be revisited every three years. In reviewing menhaden allocations, the Board expressed interest in investigating different allocation methods and timeframes given concerns that the current approach may not strike a balance between gear types and regions. Specifically, some states have expressed concern that under the current allocation method, increases in the TAC result in limited benefits to small-scale fisheries. In addition, there is concern that the current allocation method does not provide a balance between the present needs of the fishery and future growth opportunities. Given the apparent geographic expansion of the stock, particularly in New England, the 2009-2011 time-period on which allocation is based may limit states who currently have minimal quota from participating in the growing fishery. Some states have also found evidence of un-reported landings during the reference period, meaning the quota system may have reduced their fisheries to a greater extent than originally intended. 1.1.2 Benefits of Implementation Amendment 3 is designed to integrate the ecological role of menhaden into the management of the species and establish an allocation method which provides fair and equitable access to all participants in the fishery. Amendment 3 contains a management program designed to account for the multiple roles that menhaden play, both in supporting fisheries for human use and the marine ecosystem. Issues addressed in Amendment 3 include: 1. Reference Points: How menhaden are allocated between the marine ecosystem and those that harvest menhaden for human use. 2