TILEFISH FISHERY MANAGEMENT PLAN EXECUTIVE SUMMARY - ORIGINAL DOCUMENT The purpose of the proposed action is to initiate the management of golden tilefish (Lopholatilus chamaeleonticeps) pursuant to the Magnuson-Stevens Fishery Conservation and Management Act (MSFCMA) of 1976, as amended by the Sustainable Fisheries Act (SFA). The lack of any regulations pertaining to the harvest of golden tilefish in the management unit led the Mid-Atlantic Fishery Management Council (Council) to develop a management plan for the species. Fishery Management Plans (FMPs) and amendments must meet the requirements of a number of federal laws and regulations. In addition to MSFCMA, these laws and regulations include the National Environmental Policy Act, the Endangered Species Act, the Marine Mammal Protection Act, Executive Order 12866, and the Regulatory Flexibility Act. This document has been developed to meet all these federal requirements and contains all the elements of an FMP including the Environmental Impact Statement, Regulatory Flexibility Analysis, Regulatory Impact Review, and Fishery Impact Statement. Results from the recently completed NMFS Northeast Fishery Science Center (NEFSC) stock assessment indicate that the tilefish stock (north of North Carolina) is at a low biomass level and is over exploited (Nitschke et al. 1999). Total biomass in 1998 was estimated to be 6.8 million pounds, which is about 35% of the biomass that would produce maximum sustainable yield (BMSY). Biomass-based fishing mortality was estimated to be 0.45, which is about double the FMSY of 0.22. Total landings in 1998 were 2.7 million pounds (Table 1) and significantly less than the estimated MSY(4.2 million pounds). Landings are somewhat seasonal, but do occur throughout the year (Table 2). Current fishing mortality rates are unsustainable. There has been a shift in the exploitation pattern towards smaller fish. The SFA requires that a management program be developed immediately for this species and that targets and thresholds for stock size and fishing mortality be established. The management unit for this FMP is defined as all golden tilefish (Lopholatilus chamaeleonticeps) under U.S. jurisdiction in the Atlantic ocean north of the Virginia/North Carolina border (Figure1). Tilefish south of the Virginia/North Carolina border are currently managed as part of the Fishery Management Plan for the Snapper-Grouper Fishery managed by the South Atlantic Fishery Management Council (Figures 2 and 3). The overall goal of this FMP is to rebuild tilefish so that the optimum yield can be obtained from this resource. To meet the overall goal, the following objectives are adopted: 1. Prevent overfishing and rebuild the resource to the biomass that would support MSY. 2. Prevent overcapitalization and limit new entrants. 3. Identify and describe essential tilefish habitat. 4. Collect necessary data to develop, monitor, and assess biological, economic, and social impacts of management measures designed to prevent overfishing and to reduce bycatch in all fisheries. The fishing year for tilefish is the twelve (12) month period beginning with the implementation date of the FMP. Management Strategy The SFA, which reauthorized and amended the MSFCMA, made a number of changes to the existing National Standards. With respect to National Standard 1, the SFA imposed new requirements concerning definitions of overfishing in fishery management plans. To comply with National Standard 1, the SFA requires that each Council FMP define overfishing as a rate or level of fishing mortality that jeopardizes a fishery's capacity to produce maximum sustainable yield (MSY) on a continuing basis. Each FMP must specify objective and measurable status determination criteria for identifying when stocks or stock complexes covered by the FMP are overfished. To fulfill the requirements of the SFA, status determination criteria for tilefish are comprised of two components: 1) a maximum fishing mortality threshold and 2) a minimum stock size threshold. The maximum F threshold should be specified as FMSY (or a suitable proxy) and the minimum biomass threshold should be specified as ½ BMSY (or a suitable proxy). For tilefish, MSY was specified from the surplus production model in the stock assessment at 4.2 million pounds (Nitschke et al. 1999). The Council adopted FMSY = 0.22. The fishing mortality rate in 1998 is currently estimated to have been F = 0.45. The Council adopted BMSY = 18.6 million pounds and ½ BMSY = 9.3 million pounds. The 1998 biomass is estimated to have been 6.8 million pounds or about 35% the BMSY level. The SFA also requires that a risk averse fishing mortality target and a biomass target be specified. For tilefish, the Council adopted a target fishing mortality rate, Ftarget, equal to the annual F determined from the selected rebuilding schedule. The Council choose a target stock biomass, Btarget, equal to BMSY. An additional requirement of the SFA is that stocks which are identified as overfished must be rebuilt to the biomass level that will produce maximum sustainable yield (BMSY). The SFA guidelines advise that, if a stock is overfished, management must specify a time period for rebuilding that is as short as possible. The rebuilding period is not to exceed 10 years, except where biology, environmental conditions or international agreements dictate otherwise. The preferred alternative will eliminate overfishing and rebuild the tilefish stock through a constant harvest strategy that would significantly reduce fishing mortality every year in the ten year rebuilding time frame (Table 3). Fishing mortality will be reduced from an F of 0.45 (1998) to an F of roughly 0.30 in year 2000. The resource will be fully rebuilt to BMSY in 10 years with 50% probability. Proposed and Alternative Management Measures Management Program for Tilefish The Council adopted the following management program: Preferred Management Measures The Council adopted a number of preferred management measures to meet the objectives of the FMP (a complete description of these management measures is given in section 3.1). These preferred alternatives are as follows: 1. Permit and reporting requirements for commercial vessels, operators and dealers. 2. The establishment of a Tilefish FMP Monitoring Committee. 3. The implementation of a framework adjustment process. 4. A 10 year stock rebuilding schedule with 50% probability of achieving the rebuilt BMSY stock level. 5. A commercial quota divided into full-time (with two different tiers), part-time, and incidental categories. 6. A trip limit for the incidental category (non-longline). 7. Limited entry for the full-time and part-time quota categories. 8. Identification and description of essential tilefish habitat (EFH). Alternatives to the Preferred Management Actions A number of alternatives to the proposed management measures were identified by the Council for consideration by the public (a complete description of these management measures is given in section 3.1). These non-preferred alternatives include: 1. Take no action at this time. 2. Alternative rebuilding schedules. 3. Alternative limited entry criteria for full-time and part-time participation. 4. Coastwide trip limits. 5. Minimum size limit. 6. Hook size restrictions. 7. Effort reductions as in Days-at-sea measures. 8. Prohibition or restrictions on bottom tending mobile gear due to EFH damage. 9. Quarterly allocation of the quota for full-time and part-time participants. 10. Closure of the directed tilefish fishery for a one month calendar period from May through September. It is the current Mid-Atlantic Council's policy that if this fishery ever goes to an ITQ system in the future, that landings after 1998 will not assure future access to or an allocation of the tilefish resource. The purpose of this policy is to prevent a rush to fish on this overfished resource, in the hopes of obtaining a larger future allocation.