Phase 2 Stock Definitions: Identification of Groundfish Stocks in Need of Conservation and Management  

Action status

  • Implemented
  • Undergoing NMFS Review
  • Approved by Council
  • Under development by the Council

In this action, the Pacific Fishery Management Council (Council) evaluated groundfish currently managed in the Pacific Coast Groundfish Fishery Management Plan (FMP) to identify and define stocks in need of conservation and management in the Exclusive Economic Zone (EEZ). 

NMFS has advised the Council, both in writing (Agenda Item E.3.a, NMFS Report 1, March 2022) and verbally at the March (Agenda Item E.3), June (Agenda Item F.4), September (Agenda Item G.5) and November (Agenda Item H.5) 2022 Council meetings, that steps must be taken to draw the FMP into compliance with the MSA and the National Standards by defining stocks of the groundfish species identified as in need of conservation and management in the EEZ. If stocks are not defined and delineated on a geographic scale, status cannot be determined. Status determination is a key tenant to National Standard 1 and NMFS must provide this information to Congress. 

Action Alternatives

As part of this larger action, the Council considered three action alternatives. Alternative 1 would identify species as in need of conservation and management in the EEZ. Alternative 2 would identify species as not in need of conservation and management in the EEZ and remove the species from the FMP. Alternative 3 would identify species as not in need of conservation and management in the EEZ and classify the species as an ecosystem component species in the FMP. Under Alternative 1, there are also stock definition Options, which define the spatial delineation of the stock (i.e., coastwide, by state, other geographical boundary, etc.). 

Figure 1. Overview of the Range of Alternatives and Options for this action. Species under Alternative 1 ARE in need of conservation and management in the EEZ, species under Alternatives 2 & 3 ARE NOT in need of conservation and management in the EEZ 

History of the Action 

In March 2022, NMFS (Agenda Item E.3.a, NMFS Report 1, March 2022Agenda Item E.3.a, NMFS Report 1, March 2022) recommended the Council consider a series of actions to define stocks of managed groundfish species, as the FMP was not in compliance with the requirements of the MSA and its National Standards. Following those recommendations, the Council initiated the process to define stocks in the FMP, otherwise known as “Phase 1”, to correct this issue. Phase 1 developed a process to define stocks of managed species and, over the course of A31 and the proposed A35, defined 28 stocks of 21 species managed in the FMP. Phase 1 was used to define stocks of species that were undergoing assessments while a second Phase, or Phase 2, was planned to complete the process of identifying and defining those stocks of species currently managed in the FMP that are in need of conservation and management in the EEZ. 

The Council initiated Phase 2 in November 2023 with a discussion process (Agenda Item E.8, Attachment 1, November 2023). Staff returned at the September 2024 Council meeting, with the proposed analytical framework of Phase 2 (Agenda Item I.8, Attachment 1, September 2024), to initiate scoping of the action. The framework was largely built on the National Standard guidance (notably at §600.305(c)), which can be used to determine whether a stock requires conservation and management in the EEZ, as discussed above in Section 1.2. 

Figure 2. Framework for the Phase 2 process and next steps 

In March 2025, the Council adopted a 25 percent precautionary threshold as a framework for categorizing catch of species as occurring principally in the EEZ, and thus for identifying species to be likely candidates for continued Federal management in the FMP (explained more in Agenda Item H.6, Supplemental Revised Attachment 1, March 2025). In brief, if 25 percent or more of a species’ principal mortality is in the EEZ, it would be identified as likely appropriate for remaining in the FMP based on the guidance found at §600.305(c). 

Also in March 2025, the Council adopted the range of alternatives (ROA) for the Phase 2 of its groundfish stock definitions process.  

A total of 42 species were evaluated by a thorough 10-Factor analysis under §600.305(c). A draft analysis was presented to the Council at the June 2025 Council meeting (Agenda Item E.6, Supplemental Attachment 2, June 2025) and provided the Council the basis for their adoption of Alternatives 2 and 3 as their preliminary preferred alternative (PPA) for certain stocks.  

The Council took final action on Phase 2 in multiple meetings; In June 2025, the Council took final action on all stocks identified as appropriate for remaining in the FMP via the 25 percent threshold. In September 2025, the Council took final action on all but a select group of stocks evaluated via the 10-Factor analysis. The Council is scheduled to take final action on the remaining stocks at a later date. Amendment 37, defining stocks of all species adopted under Alternative 1 to date (in June or September 2025) has been transmitted to NMFS. An amendment package is in progress for all stocks adopted under Alternatives 2 and 3 to date (in September 2025). 

Figure 3. Timeline of the stock definitions process 

Summary of Outcomes to Date

Stocks Defined in the FMP (in need of conservation and management in the EEZ) 

Table 1. Species which had their stocks defined under Amendment 31 or Amendment 35 (not in regulation yet) and will remain in the FMP 

Chilipepper Petrale sole Sunset rockfish 
Canary rockfish Redbanded rockfish Vermilion rockfish 
Blackspotted rockfish Rex sole Widow rockfish 
Dover sole Rougheye rockfish Yelloweye rockfish 
English sole Sablefish Yellowtail rockfish 
Lingcod Shortspine thornyhead  
Pacific spiny dogfish Squarespot rockfish  

Table 2. Stocks to be defined in Amendment 37 to the FMP following the Phase 2 process 

Stock  Stock Delineation(s)  Stock  Stock Delineation(s)  
Arrowtooth flounder  Coastwide  Pacific spiny dogfish  Coastwide  
Aurora rockfish   Coastwide  Petrale sole  Coastwide  
Bank rockfish  Coastwide  Quillback rockfish  Washington-only  
Big skate  Coastwide  Redbanded rockfish   Coastwide  
Black rockfish   Washington-only  Redstripe rockfish   Coastwide  
Blackgill rockfish  Coastwide  Rex sole   Coastwide  
Bocaccio rockfish  Coastwide  Rosethorn rockfish  Coastwide  
California scorpionfish  California-only  Rougheye/Blackspotted rockfish  Coastwide  
Canary rockfish  Coastwide  Sablefish  Coastwide  
Chilipepper rockfish  Coastwide  Sharpchin rockfish   Coastwide  
Cowcod  California-only  Shortraker rockfish   Coastwide  
Darkblotched rockfish   Coastwide  Shortspine thornyhead  Coastwide  
Dover sole  Coastwide  Silvergray rockfish  Coastwide  
English sole  Coastwide  Splitnose rockfish   Coastwide  
Flathead sole   Coastwide  Squarespot rockfish  Coastwide  
Greenspotted rockfish  Coastwide  Starry rockfish  California-only  
Greenstriped rockfish  Coastwide  Stripetail rockfish  Coastwide  
Lingcod  N of 40°10 N. lat.  Vermilion/sunset rockfish  North of 42°N. lat.  
Lingcod  S of 40°10 N. lat.  Sunset rockfish  South of 42°N. lat.  
Longnose skate  Coastwide  Widow rockfish  Coastwide  
Longspine thornyhead  Coastwide  Yelloweye rockfish   Coastwide  
Pacific cod   Coastwide  Yellowmouth rockfish  Coastwide  
Pacific hake  Coastwide  Yellowtail rockfish  N a of 40°10 N. lat.  
Pacific ocean perch   Coastwide  Yellowtail rockfish  S of 40°10 N. lat.  
Pacific sanddab  Coastwide      

Stocks removed from the FMP (not in need of conservation and management in the EEZ) 

Table 3. Species adopted under Alternative 2, where species are removed from the FMP, and stock area of removal. 

Species Stock Removed From FMP 
Black and yellow rockfish Coastwide 
Black rockfish California-only 
Blue rockfish California-only 
Brown rockfish Coastwide 
Cabezon  Oregon and California 
Calico rockfish Coastwide 
Chameleon rockfish Coastwide 
China rockfish  California-only 
Copper rockfish  California-only 
Dwarf-red rockfish Coastwide 
Freckled rockfish Coastwide 
Gopher rockfish Coastwide 
Grass rockfish Coastwide 
Halfbanded rockfish Coastwide 
Harlequin rockfish Coastwide 
Honeycomb rockfish Coastwide 
Kelp greenling  Oregon and California 
Kelp rockfish Coastwide 
Leopard shark Coastwide 
Light dusky rockfish Coastwide 
Olive rockfish Coastwide 
Pink rockfish Coastwide 
Pinkrose rockfish Coastwide 
Pygmy rockfish Coastwide 
Quillback rockfish  California-only 
Swordspine rockfish Coastwide 
Treefish Coastwide 

Species designated as EC species (not in need of conservation and management in the EEZ) 

Table 4. Species adopted under Alternative 3, designating them as ecosystem component species in the FMP. 

Rockfish Species Flatfish Species 
Bronzespotted rockfish Butter sole 
Flag rockfish Curlfin sole 
Greenblotched rockfish Rock sole 
Mexican rockfish Sand sole 
Rosy rockfish Starry flounder 
Speckled rockfish  
Tiger rockfish   

Council Decisions

MARCH 2025 

PPA: The Council adopted Alternative 1 as PPA for 47 species. Stocks of 19 species had been previously defined under Amendments 31 and 35, while stock definition Options were analyzed for the remaining 28 species 

Table 5. Species adopted under Alternative 1 as PPA which had their stocks defined under Amendment 31 or Amendment 35 (not in regulation yet) and will remain in the FMP

Chilipepper Petrale sole Sunset rockfish 
Canary rockfish Redbanded rockfish Vermilion rockfish  
Blackspotted rockfish Rex sole Widow rockfish 
Dover sole Rougheye rockfish Yelloweye rockfish 
English sole Sablefish Yellowtail rockfish 
Lingcod Shortspine thornyhead   
Pacific spiny dogfish Squarespot rockfish  

Table 6. Species adopted under Alternative 1, Option 1 as PPA 

Arrowtooth flounder Longnose skate Rosethorn rockfish Yellowmouth rockfish 
Aurora rockfish Longspine thornyhead Sharpchin rockfish California scorpionfish 
Bank rockfish Pacific cod Shortraker rockfish Starry rockfish 
Big skate Pacific hake Silvergray rockfish Yellowmouth rockfish 
Blackgill rockfish Pacific ocean perch Splitnose rockfish   
Flathead sole Pacific sanddab Stripetail rockfish   
Greenstriped rockfish Redstripe rockfish Rosethorn rockfish  

Table 7. Species adopted under Alternative 1 as PPA, analyzed under Options 1 and 2. 

Bocaccio Harlequin rockfish 
Cowcod Greenspotted rockfish 

Additional Analysis: Remaining 39 species recommended for 10 factor analysis 

Table 8. Species recommended to be analyzed under all Alternatives via the 10-Factor Analysis and applicable stock delineations

Black and Yellow Rockfish  Flag rockfish Pinkrose rockfish 
Black rockfish Freckled rockfish Pygmy rockfish 
Blue Rockfish   Gopher Rockfish Quillback rockfish 
Bronzespotted rockfish Grass Rockfish  Rock sole 
Brown Rockfish  Greenblotched rockfish Rosy rockfish 
Butter sole Halfbanded rockfish Sand sole 
Cabezon Honeycomb rockfish Speckled rockfish 
Calico Rockfish a/ Kelp greenling Starry flounder 
Chameleon Rockfish Kelp rockfish Swordspine rockfish 
China Rockfish  Leopard shark Tiger rockfish 
Copper rockfish Light Dusky Rockfish Treefish 
Curlfin sole Mexican rockfish   
Deacon Rockfish Olive rockfish   
Dwarf-Red Rockfish Pink rockfish   

JUNE 2025 

FPA: Council identified 44 species as in need of conservation and management in the EEZ, adopted Alternative 1 for and stock definition Options 

  • 25 species under Option 1 (1 stock) 
    • 22 stocks coastwide 
    • 3 stocks California-only 
  • 19 species already had stock defined under A31 or A35, did not need a stock definition Option 

Table 9. Species adopted under Alternative 1 and their stock units. Species with an “*” indicate they were defined under Amendment 31 or Amendment 35; their stock units are provided for reference.  

Species Stock Definition Species Stock Definition 
Arrowtooth flounder Coastwide Pacific ocean perch Coastwide 
Aurora rockfish Coastwide Pacific sanddab Coastwide 
Bank rockfish Coastwide Pacific spiny dogfish* Coastwide 
Big skate Coastwide Petrale sole* Coastwide 
Blackgill rockfish Coastwide Redbanded rockfish* Coastwide 
Bocaccio rockfish Coastwide Redstripe rockfish Coastwide 
California scorpionfish CA-only Rex sole* Coastwide 
Canary rockfish* Coastwide Rougheye/Blackspotted rockfish* Coastwide 
Chilipepper* Coastwide Sablefish* Coastwide 
Cowcod CA-only Sharpchin rockfish Coastwide 
Darkblotched rockfish Coastwide Shortraker rockfish Coastwide 
Dover sole* Coastwide Shortspine thornyhead* Coastwide 
English sole* Coastwide Silvergray rockfish Coastwide 
Flathead sole Coastwide Splitnose rockfish Coastwide 
Greenspotted rockfish Coastwide Squarespot rockfish* Coastwide 
Greenstriped rockfish Coastwide Starry rockfish CA-only 
Lingcod* N/S of 4010 N. Lat. Vermilion rockfish* OR/WA 
Longnose skate Coastwide Vermilion/Sunset rockfish* CA-only 
Longspine thornyhead Coastwide Widow rockfish* Coastwide 
Pacific cod Coastwide Yelloweye rockfish* Coastwide 
Pacific hake Coastwide  Yellowmouth Coastwide 

PPA: Council identified stocks of 7 species as in need of conservation and management in the EEZ, stocks of 38 species as not in need of conservation and management in the EEZ. In some cases, different stocks of the same species were under different alternatives.* 

  • Stocks of 7 species adopted under Alternative 1, with stock delineation Options as needed 
  • Stocks of 26 species adopted under Alternative 2 
  • 12 species under Alternative 3 

*Black, blue, cabezon, and copper rockfishes, kelp greenling  

Table 10. Species adopted under Alternative 1 as PPA and their PPA stock definitions. An “*” indicates the species was defined under Amendment 31. 

Species PPA Stock Delineations 
Black rockfish* An Oregon stock and a Washington stock 
Blue/Deacon rockfish  An Oregon stock and a Washington stock 
Cabezon  Washington only stock 
Copper rockfish * Washington and Oregon stock 
Kelp greenling  Washington only stock 
Quillback rockfish * Washington stock, Oregon stock, and California stock 

Table 11. Species adopted under Alternative 2. For species with state abbreviations in parentheses, the species would be removed from the FMP off those states only, but stocks of the same species may remain in the FMP off other states, as detailed in Table 2. 

Species 
Black and yellow rockfish Half-banded rockfish 
Black rockfish (CA) Harlequin rockfish 
Blue rockfish (CA) Honeycomb rockfish 
Brown rockfish Kelp greenling (OR/CA) 
Cabezon (OR/CA) Kelp rockfish 
Calico rockfish Leopard shark 
Chameleon rockfish Light dusky rockfish 
China rockfish Olive rockfish 
Copper rockfish (CA) Pink rockfish 
Dwarf red rockfish Pinkrose rockfish 
Freckled rockfish Pygmy rockfish 
Gopher rockfish Swordspine rockfish 
Grass rockfish Treefish 

The Council adopted Alternative 3 for 12 species as PPA (Table 4). Alternative 3 indicates these species are not in need of conservation and management in the EEZ and would be designated as EC species in Chapter 3 of the FMP. 

Table 12. Species adopted under Alternative 3.  

Bronzespotted rockfish Butter sole 
Flag rockfish Curlfin sole 
Greenblotched rockfish Rock sole 
Rosy rockfish Sand sole 
Speckled rockfish Starry flounder 
Tiger rockfish   
Mexican Rockfish  

Additional Analysis: The Council identified 3 additional species for analysis under all Alternatives via the 10 Factor analysis (harlequin, stripetail, rosethorn rockfishes). 

SEPTEMBER 2025 

FPA: Stocks of 4 species identified as in need of conservation and management in the EEZ, adopted under Alternative 1 with stock delineations 

Stocks of 39 species were identified as not in need of conservation and management in the EEZ 

  • Stocks of 27 species adopted under Alternative 2 to be removed from the FMP 
  • 12 species adopted under Alternative 3 to be designated as EC species 

Table 13. Species and their stock delineation as adopted under Alternative 1. *Stocks of black rockfish and quillback rockfish were already defined via A31 

Species Stock Delineations 
Black rockfish (WA) WA only* 
Rosethorn rockfish Coastwide 
Quillback rockfish (WA) WA only* 
Stripetail rockfish Coastwide 

Table 14. Species adopted under Alternative 2, where species are removed from the FMP, and area of removal. 

Species Area Removed From FMP 
Black and yellow rockfish Coastwide 
Black rockfish California-only 
Blue rockfish California-only 
Brown rockfish Coastwide 
Cabezon  Oregon and California 
Calico rockfish Coastwide 
Chameleon rockfish Coastwide 
China rockfish  California-only 
Copper rockfish  California-only 
Dwarf-red rockfish Coastwide 
Freckled rockfish Coastwide 
Gopher rockfish Coastwide 
Grass rockfish Coastwide 
Halfbanded rockfish Coastwide 
Harlequin rockfish Coastwide 
Honeycomb rockfish Coastwide 
Kelp greenling  Oregon and California 
Kelp rockfish Coastwide 
Leopard shark Coastwide 
Light dusky rockfish Coastwide 
Olive rockfish Coastwide 
Pink rockfish Coastwide 
Pinkrose rockfish Coastwide 
Pygmy rockfish Coastwide 
Quillback rockfish  California-only 
Swordspine rockfish Coastwide 
Treefish Coastwide 

Table 15. Species adopted under Alternative 3, designating them as ecosystem component species in the FMP. 

Rockfish Species Flatfish Species 
Bronzespotted rockfish Butter sole 
Flag rockfish Curlfin sole 
Greenblotched rockfish Rock sole 
Mexican rockfish Sand sole 
Rosy rockfish Starry flounder 
Speckled rockfish  
Tiger rockfish   

Next Steps:

For a select group of nearshore species, the Council was not able to come to a Final Preferred Alternative decision for all stocks of these species. The Council intends to return to the Phase 2 action on these species/stocks at a future meeting.

Table 16. Species and specific areas to be considered at a later date. *Stocks of black, copper, and quillback rockfishes have already been defined via A31. 

Species Area(s) 
Black rockfish Oregon* 
Blue and deacon rockfishes State-specific preliminary stocks – Oregon and Washington 
Cabezon Washington 
China rockfish State-specific preliminary stocks – Oregon and Washington 
Copper rockfish Oregon/ Washington combined stock* 
Kelp greenling Washington 
Quillback rockfish Oregon* 

The Council also provided guidance related to future monitoring and evaluation of EC species. They requested that Council staff and the Groundfish Management Team develop a checkpoint to prompt re-evaluation of all EC species, including those that were designated under this action. 

REFERENCE MATERIALS 

Table 17. Reference documents for history of action. 

Document Topic 
Agenda Item E.3.a, NMFS Report 1, March 2022  NMFS identifies concerns with FMP regarding stocks 
Agenda Item H.5, Attachment 1, November 2022.Range of Alternatives stock definitions for species assessed in 2021 and those to be assessed in 2023. 
Agenda Item F.7, Attachment 1, March 2023 Preliminary Preferred Alternative stock definitions for species assessed in 2021 and those to be assessed in 2023. 
Agenda Item H.3, Attachment 1, June 2023Final Preferred Alternative stock definitions for species to be assessed in 2021 and those to be assessed in 2023. 
Agenda Item F.4, Attachment 1, June 2024Range of Alternatives stock definitions for species to be assessed in 2025 & 2027  
Agenda Item I.5, Attachment 1, September 2024 Preliminary Preferred Alternative(s) stock definitions for species to be assessed in 2025 & 2027 
Agenda Item I.8, Attachment 1, September 2024 Scoping document for Phase 2 
Agenda Item I.4, Attachment 1, November 2024 Final Preferred Alternative stock definitions for stocks to be assessed in 2025 & 2027 
Agenda Item H.6 Supplemental REVISED Attachment 1, March 2026 A proposed framework process and analysis in support of a range of alternatives for the Phase 2 stock definitions process 
Agenda Item H.6 Attachment 3, March 2025 Literature Review of Life History Aspects ofAll 86 Groundfish Species Managed by the Pacific Fishery Management Council 
Agenda Item E.6 Attachment 1, June 2025 Analysis of the Preliminary Preferred Alternatives for 47 Groundfish Species Adopted under Alternative 1 in March 2025 
Agenda Item E.6 Supplemental Attachment 2, June 2025 10 Factor Analysis of 40 Groundfish Species and a Range of Alternatives to Support Council Decision-Making for a Preliminary Preferred Alternative 
Agenda Item G.2 Attachment 1, September 2025 DRAFT Environmental Assessment/Regulatory Impact Review/ Regulatory Flexibility Analysis/MSA Analysis for Proposed Amendment to the Pacific Coast Groundfish Fishery Management Plan 

FMP Amendments 

Amendments 31 and 35

Table 18. Species which had their stocks defined under Amendment 31 (Phase 1 stock definitions) or Amendment 35 (not in regulation yet) and will remain in the FMP 

Chilipepper Petrale sole Sunset rockfish 
Canary rockfish Redbanded rockfish Vermilion rockfish 
Blackspotted rockfish Rex sole Widow rockfish 
Dover sole Rougheye rockfish Yelloweye rockfish 
English sole Sablefish Yellowtail rockfish 
Lingcod Shortspine thornyhead  
Pacific spiny dogfish Squarespot rockfish  

Amendment 37: Identification of Groundfish in Need of Conservation and Management and Defining their Stocks 

Table 19. Species which were identified as in need of conservation and management in the EEZ during the Phase 2 process and will be defined and remain in the FMP 

Stock  Stock Delineation(s)  Stock  Stock Delineation(s)  
Arrowtooth flounder  Coastwide  Pacific spiny dogfish  Coastwide  
Aurora rockfish   Coastwide  Petrale sole  Coastwide  
Bank rockfish  Coastwide  Quillback rockfish  Washington-only  
Big skate  Coastwide  Redbanded rockfish   Coastwide  
Black rockfish   Washington-only  Redstripe rockfish   Coastwide  
Blackgill rockfish  Coastwide  Rex sole   Coastwide  
Bocaccio rockfish  Coastwide  Rosethorn rockfish  Coastwide  
California scorpionfish  California-only  Rougheye/Blackspotted rockfish  Coastwide  
Canary rockfish  Coastwide  Sablefish  Coastwide  
Chilipepper rockfish  Coastwide  Sharpchin rockfish   Coastwide  
Cowcod  California-only  Shortraker rockfish   Coastwide  
Darkblotched rockfish   Coastwide  Shortspine thornyhead  Coastwide  
Dover sole  Coastwide  Silvergray rockfish  Coastwide  
English sole  Coastwide  Splitnose rockfish   Coastwide  
Flathead sole   Coastwide  Squarespot rockfish  Coastwide  
Greenspotted rockfish  Coastwide  Starry rockfish  California-only  
Greenstriped rockfish  Coastwide  Stripetail rockfish  Coastwide  
Lingcod  N of 40°10 N. lat.  Vermilion/sunset rockfish  North of 42°N. lat.  
Lingcod  S of 40°10 N. lat.  Sunset rockfish  South of 42°N. lat.  
Longnose skate  Coastwide  Widow rockfish  Coastwide  
Longspine thornyhead  Coastwide  Yelloweye rockfish   Coastwide  
Pacific cod   Coastwide  Yellowmouth rockfish  Coastwide  
Pacific hake  Coastwide  Yellowtail rockfish  N a of 40°10 N. lat.  
Pacific ocean perch   Coastwide  Yellowtail rockfish  S of 40°10 N. lat.  
Pacific sanddab  Coastwide      

Amendments in Progress 

Species identified as not in need of conservation and management in the EEZ will be removed from the FMP or designated as EC species in Chapter 3.3 of the FMP in this amendment package. 

Action in Progress 

The Council has not yet taken final action on stocks of 8 species in the FMP and this action is still in progress. 

Revisions to stock complexes for applicable stocks per NS1 guidelines will begin in June 2026.