SUPPLEMENTAL REGULATORY IMPACT REVIEW
OF PRESEASON CHANGES I N TAC, PERMITS, AND BAG LIMITS FOR
KING MACKEREL ATLANTIC MIGRATORY GROUP
MANAGED UNDER THE FISHERY MANAGEMENT PLAN FOR THE
COASTAL MIGRATORY PELAGIC RESOURCES OF THE GULF OF MEXICO
AND THE SOUTH ATLANTIC
INTRODUCTION
The F i s h e r y Management P l a n f o r t h e C o a s t a l M i g r a t o r y P e l - a g i c R e s o u r c e s
of t h e Gulf o f Mexico and t h e South A t l a n t i c (FMP) was p r e p a r e d j o i n t l y by t h e
Gulf o f Mexico a n d S o u t h A t l a n t i c F i s h e r y Management C o u n c i l s ( C o u n c i l s ) .
The
A s s i s t a n t A d m i n i s t r a t o r f o r F i s h e r i e s , NOAA ( A s s i s t a n t A d m i n i s t r a t o r ) approved
t h e FMP o n A p r i l 1, 1982 and t h e S e c r e t a r y o f Commerce ( S e c r e t a r y ) implemented
f i n a l r e g u l a t i o n s o n February 4, 1983 ( 4 8 FR 5272), under t h e a u t h o r i t y o f t h e
Magnuson F i s h e r y c o n s e r v a t i o n and Management Act, a s amended (Magnuson Act).
An amendment t o t h e PMP (amendment one) was p r e p a r e d j o i n t l y by t h e C o u n c i l s ,
approved o n J u l y 26, 1985 by t h e R e g i o n a l D i r e c t o r , W S , and implemented
September 2 2 , 1 9 8 5 (50 FR 34843)-
The FMP manages t h e c o a s t a l m i g r a t o r y p e l a g i c s f i s h e r y t h r o u g h o u t t h e
f i s h e r y c o n s e r v a t i o n zone (FCZ) o f f t h e s o u t h A t l a n t i c c o a s t a l s t a t e s from t h e
Virginia-North
C a r o l i n a b o r d e r s o u t h and t h r o u g h t h e Gulf of Mexico t o t h e
Texas-Mexico b o r d e r .
Major s p e c i e s i n t h e management u n i t f o r t h e FMP a r e
S p a n i s h m a c k e r e l , k i n g mackerel, and c o b f a .
Within t h e king mackerel s t o c k , - a
Gulf o f Mexico m i g r a t o r y group and an A t l a n t i c m i g r a t o r y group a r e
distinguished.
The Gulf of Mexico m i g r a t o r y g r o u p , which i s i n a s t a t e o f
r e c r u i t m e n t o v e r f i s h i n g and on t h e v e r g e o f a c o m p l e t e c o l l a p s e , i s t h e f o c u s
of a n emergency r u l e .
The A t l a n t i c m i g r a t o r y g r o u p i s approaching f u l l
e x p l o i t a t i o n and is i n need of p r o t e c t i o n t h r o u g h a r e d u c t i o n i n t o t a l
a l l o w a b l e c a t c h (TAC) t o prevent o v e r f i s h i n g .
The C o u n c i l s have recommended a r e d u c t i o n i n TAC f o r t h e A t l a n t i c
m i g r a t o r y group f o r t h e 1986-1987 f i s h i n g y e a r . The C o u n c i l s a l s o have
recommended p e r m i t s b e r e q u i r e d f o r commercial v e s s e l s and bag l i m i t a t i o n s f o r
r e c r e a t i o n a l fishermen.
MWS a c c e p t s t h e s e recommendations as n e c e s s a r y f o r
managesent o f t h e r e s o u r c e .
DESCRIPTION OF THE PROPOSED ACTION
Changes i n t h e t o t a l a l l o w a b l e c a t c h (TAC) p e r m i t t i n g r e q u i r e m e n t s , and
bag l i m i t s f o r t h e A t l a n t i c m i g r a t o r y group o f k i n g m a c k e r e l a r e b e i n g made i n
a c c o r d a n c e w i t h t h e framework p r o c e d u r e under amendment one t o t h e F i s h e r y
Management P l a n f o r t h e C o a s t a l M i g r a t o r y P e l a g i c R e s o u r c e s o f t h e Gulf of
Mexico and t h e S o u t h A t l a n t i c .
TAC and a l l ~ c a t i o n sf o r A t l a n t i c group k i n g
m a c k e r e l a r e reduced by 1 8 p e r c e n t based on r e c e n t c a t c h d a t a and p e r m i t s f o r
commercial v e s s e l s and bag L i m i t s f o r r e c r e a t i o n a l f i s h e r m e n a r e r e q u i r e d ,
The i n t e n d e d e f f e c t s a r e t o p r o t e c t t h e king m a c k e r e l A t l a n t i c group and s t i l l
a l l o w a c a t c h by t h e i m p o r t a n t r e c r e a t i o n a l and c o m m e r c i a l f i s h e r i e s t h a t a r e
dependent on t h i s s p e c i e s and t o implement a p e r m i t r e q u i r e m e n t for c o m e r c i a b
v e s s e l s f o r t h e p u r p o s e o f improved management.
NEED FOR PROPOSED ACTION
The A t l a n t i c g r o u p , which i n h a b i t s t h e A t l a n t i c Ocean d u r i n g t h e y e a r and
s u p p o r t s t h e summer f i s h e r y i n , S o u t h e a s t F l o r i d a is a p p r o a c h i n g f u l l
exploitation.
King m a c k e r e l A t l a n t i c m i g r a t o r y g r o u p l a n d i n g s would have
exceeded t h e TAC o f 11.8 m i l l i o n pounds, set i n amendment o n e , i n two o u t o f
t h e p a s t s i x y e a r s due t o l a r g e r e c r e a t i o n a l c a t c h e s .
Recreational catches
would h a v e b e e n i n e x c e s s of t h e i r a l l o c a t i o n d u r i n g t h r e e of t h e p a s t s i x
y e a r s s i n c e t h e 1979-1980 f i s h i n g y e a r :
1985.
1980-1981,
1983-1984, and 1984-
The TAC f o r t h e A t l a n t i c g r o u p was set h i g h under amendment one t o
a l l o w f o r a n i n c r e a s e i n c a t c h ( a s TAC f o r t h e Gulf g r o u p was s e t low t o
p r o v i d e a d e c r e a s e ) s o t h a t t h e s t o c k moves t o w a r d s e q u i l i b r i u m .
The C o u n c i l s now c o n s i d e r i t p r u d e n t t o l o w e r TAC and t h u s u s e r g r o u p
a l l o c a t i o n s by 18 p e r c e n t f o r t h e A t l a n t i c g r o u p i n o r d e r t o move &ward MSY,
s t a b i l i z e c a t c h e s , p r e v e n t o v e r f i s h i n g and a s s i s t i n r e c o v e r y o f t h e Gulf
g r o u p w i t h which i t mixes s e a s o n a l l y .
reduction necessary
person per t r i p .
t.0
E i g h t e e n p e r c e n t i s t h e amount o f
implement a r e c r e a t i o n a l bag l . i m i t of three f i s h p e r
The p u b l i c i n d i c a t e d a c c e p t a n c e of t h e t h r e e f i s h per p e r s o n
per t r i p b a g l i m i t d u r i n g t h e r e c e n t p u b l i c h e a r i n g s .
The r e d u c t i o n i n TAC
and a l l o c a t i o n s a l s o would p r o v i d e f o r l o n g - t e r m s t a b i l i t y o f t h i s r e s o u r c e by
a n t i c i p a t i n g a s h i f t i n e f f o r t t o t h e A t l a n t i c g r o u p a s t h e r e s u l t of reduced
c a t c h o n t h e Gulf group.
The C o u n c i l s , t h e r e f o r e , r e q u e s t e d t h a t u n d e r t h e a u t h o r i t y o f $642.27
t h e TAC b e r e d u c e d t o 9.68 m i l l i o n pounds f o r t h e A t l a n t i c m i g r a t o r y g r o u p f o r
t h e 1986-1987 f i s h i n g y e a r b e g i n n i n g o n A p r i l 1, 1986.
The a l l o c a t i o n s
e s t a b l i s h e d by t h e p r e s c r i b e d f o r m u l a i n t h e FMP would be a c o m e r c i a l
a l l o c a t i o n o f 3.59 m i l l i o n pounds u n d e r $642.21 ( a ) and 6.09 m i l l i o n pounds
f o r r e c r e a t i o n a l fishermen who a r e t o b e r e g u l a t e d under $642.28 by a bag
l i m i t o f t h r e e f i s h per person per t r i p i n c l u d i n g t h e c a p t a i n and t h e c r e w o f
the vessel.
When the recreational fishery allocation of 6.09 million pounds or the
fishery allocation of 3.59 million pounds is reached, or is
projected to be reached, that fishery will be closed under the authority of
$642.2.
Commercial boats fishing the Atlantic group are required to obtain an
annual permit and may do so providing the owner or operator has derived at
lease 10 percent of his earned income from commercial fishing in the previous
year.
Charter vessel operators may obtain a permit to fish the Atlantic group
commercially if they meet. the earned income requirement and adhere to bag
limits while under charter.
h charter vessel that has been permitted t o fish
commercially will be considered to be under charter %P more than three persons
are aboard including the captain and .crew. The Regional ~irectorwill issue
non-transferrable permits at no c ~ s tduring the 60-day period prior to the
beginning of the season (April 1).
Permits may be issued at other times for
newly registered vessels or in cases of demonstrated hardships. The issuance
of permits for commercial vessels will assist in determining the distribution
of the reduced TAC between commercial and recreational fishermen and will be
an aid in evaluating the status of each user group's catch.
The minimum
income percentage requirement for a permit far commercial fishermen also will
prevent large numbers of recreational fishermen from obtaining permits and
thereby circumventing the bag limitation.
REGULATORY
-
IMPACTS SUMMARY
*
Based on actual landings over the past six fdshfng years (Table I ) , the
reduction in TAC is expected to have minimal adverse impacts on the
r e c r e a t i o n a l and commercial s e c t o r s .
Although t h e prcposed TAC (9.7 m i l l i o n
pounds) i s a n 18 p e r c e n t r e d u c t i o n from t h e o r i g i n a l TAC of 11.8 m i l l i o n
pounds, a v e r a g e l a n d i n g s from t h e u s e r g r o u p s a s shown i n Table 1 were 9.9
s i l l i o n pounds o v e r t h e p a s t s i x y e a r s .
The FMP a l l o c a t e s 62.9 p e r c e n t of t h e
TAC t o t h e r e c r e a t i o n a l and 37.1 p e r c e n t t o t h e c o m e r c i a b s e c t o r s *
Under t h e proposed TAC, t h e r e c r e a t i o n a l s e e t o r would received 6 0 0 9
m i l l i o n pounds.
T h i s amount i s an 18 p e r c e n t r e d u c t i o n (1.%4 m i l l i o n pounds)
i n t h e a v e r a g e l a n d i n g s over t h e p a s t s i x f i s h i n g y e a r s .
Recreational
fishermen w i l l be r e g u l a t e d by a bag l i m i t of t h e t h r e e f i s h per person per
trip.
T h i s bag l i m i t reduces t h e c a t c h by t h e d e s i r e d 18 percent.
Charter
v e s s e l s a r e allowed ts f i s h c o m e r s i a l l y o n t h e commercial quota i f t h e
o m e r / s p e r a t o r d e r i v e d a t l e a s t t e n p e r c e n t of h i s earned income from
commercial f i s h i n g i n t h e previous year.
A p e r m i t t e d c h a r t e r v e s s e l must
adhere t o t h e bag l i m i t while under c h a r t e r and i s c o n s i d e r e d t o be under
c h a r e e r i f more t h a n t h r e e persons a r e a b o a r d , i n c l u d i n g t h e c a p t a i n and
crew.
When t h e r e c r e a t i o n a l s e c t o r c a t c h e s i t s a l l o c a t i o n and t h e f i s h e r y i s
c l o s e d t h e r e c r e a t i o n a l a n g l e r s have t h e f o l l o w i n g (unranked) o p t i o n s :
c o n t i n u e t o f i s h f o r king mackerel b u t r e l e a s e t h e c a t c h ; d i v e r s i f y t h e i r
a c t i v i t y t o i n c l u d e o t h e r s p e c i e s such a s c o b i a and r e d snapper; o r c e a s e
fishing.
P e r m i t t e d c h a r e e r v e s s e l o p e r a t o r s would b e a b l e t o f i s h
comnerciably as bong a s t h e c o m e r c i a l q u o t a i s n o t reached.
The impact on
t h e p r i v a t e angler-dependent support i n d u s t r i e s and t h e c h a r t e r v e s s e l
o p e r a t o r s i s unknown; however, i t would be a d v e r s e o n l y i f a l a r g e number of
anglers ceased fishing.
At t h i s time, no k n f o m a t i o n e x i s t s t o make t h i s
d e t e r m i n a t i o n , b u t i t i s d o u b t f u l t h a t t h e t h r e e f i s h bag l i m i t , which
r e p r e s e n t s only a n 1 8 p e r c e n t r e d u c t i o n i n c a t c h , would c a u s e w h o l e s a l e
abandonment of p a r t i c i p a t i o n i n t h e f i s h e r y .
Under t h e proposed TAC, t h e commercial s e c t o r would r e c e i v e 3.59 m i l l i o n
pounds, an 1 8 p e r c e n t r e d u c t i o n from t h e o r i g i n a l a l l o c a t i o n o f 4.38 m i l l i o n
pounds.
T h i s amount f a 43 p e r c e n t or 1.08 m i l l i o n pounds above t h e average
commercial l a n d i n g s o v e r t h e p a s t s i x f i s h i n g y e a r s .
Commercial and p e r a i t t e d
c h a r t e r v e s s e l s f i s h i n g o n t h e A t l a n t i c group should n o t be a d v e r s e l y a f f e c t e d
by t h e a l l o c a t i o n s i n c e this l e v e l s f c a t c h was reached ~ n l yonce o v e r t h e
p a s t s i x f i s h i n g yeare.
The number of v e s s e l s p e r m i t t e d t o f i s h on t h i s
m i g r a t o r y group i s e s t i m a t e d t o be about 900 (415 c h a r t e r , 463 Florida-based
commercial, and 22 s n a p p e r f g r o u p e r commercials vessel^)^
number of t h e 64 Louisiana-based
Also a n unknown
p e r m i t t e d v e s s e l may e n t e r t h i s f i s h e r y .
There i s no i n f o r m a t i o n t o d e t e r m i n e t h e p o r t i o n of a l l o c a t i o n each group of
v e s s e l s would t a k e .
t o a b o u t $2,200.
150 hours.
C o s t t o NMFS f o r i s s u i n g t h e p e r m i t s h a s been estimated
T o t a l b u r d e n t o t h e fishermen h a s been e s t i m a t e d t o be about
A t l a n t i c M i g r a t o r y Group King Mackerel C a t c h e s
(Thousands of Pounds)
Year
-
Recreational Catch
Commercial C a t c h
Total
4,654
f 979-1980
2,729
1,925
1980-1981
11,098"
2,787
1981-1982
4,968
2,342
7,310
1982-1983
5,917
3,83'4**
9,751
1983-1984
10,332"
2,386
12,718***
9,56l*
1,778
11,339
2,509
9,943
1984-1985~
7,434
Average
*
**
***
13,885***
Would h a v e e x c e e d e d a r e c r e a t i o n a l a l l o c a t i o n o f 7.434 m i l l i o n pounds.
Would h a v e e x c e e d e d a commercial a l l o c a t i o n s f 3.59 m i l l i o n pounds
Would h a v e exceeded a TAC of 11.8 m i l l i o n pounds
Preliminary
Source:
P e t e r , E l d r i d g e ; Trends i n Commercial and R e c r e a t i o n a l F i s h e r i e s
o r King M a c k e r e l i n t h e S o u t h e a s t e r n U n i t e d S t a t e s .
D i v i s i o n C o n t r i b u t i o n NO. ML 1-85-16,
Laboratory.
August 1985.
Fishery Analysis
W S , Charleston,