The Fisheries Management Experience in the ... - Oceana Brasil · The Fisheries Management Experience in the United States: History, Legal Instruments and Performance Steven Murawski

1

1st International Symposium on Marine Fisheries Management

in Brazil: Challenges and Opportunities

Brasília

6-8 July, 2015, 2014

The Fisheries Management Experience in the

United States: History, Legal Instruments

and Performance

Steven Murawski

University of South Florida,

St. Petersburg, FL 33701

[email protected]

Outline

Brief Overview of USA Fisheries

History and Provisions of the Magnuson-Stevens

Fishery Conservation & Management Act, 1976-

present

The Roles of Managers, Scientists and Regulators

Performance of Managed Fisheries

Ongoing Challenges: 2015 and beyond

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Managing USA Fisheries in

“Layers”

• 30 individual marine coastal states in the USA +

territories such as PR, VI, American Samoa, Guam, N.

Mariana Islands – all control their territorial seas (ex. NMI)

– usually 3 miles, TX, FL have 9 mi seas

• Three state commissions: Atlantic States Marine Fisheries

Commission (ASMFC), Gulf of Mexico Marine Fisheries

Commission; Pacific States Marine Fisheries Commission

• Federal government used to control 12 n.mi. Federal territorial

sea and the continental shelves

• In 1983 President Reagan issues a Proclamation claiming a

200 mile “exclusive economic zone” around the USA

• Beyond the USA national Jurisdiction there 11 international

“Regional Fishery Management Organizations” or

RFMOs that the US is a signatory to.

Ecosystem Goal Team & Technology, Planning and Integration Program Office Ecosystem Goal Team & Technology, Planning and Integration Program Office

N.B.: the USA is a big country with

extremely diverse fisheries

Management before Extended Jurisdiction Boston Fish Pier - 1932

1893 1903 1913 1923 1933 1943 1953 1963 1973 1983 1993

Year

0

200

400

600

800

1000

La

nd

ing

s (

Me

tric

To

ns

)

USA

Canada

Others

Sequential Depletion Atlantic Halibut

Landings

“….try to imagine a mobile and completely self-contained timber-cutting machine that could smash through the roughest trails of forest, cut down trees, mill them, and deliver consumer-ready lumber in half the time of normal logging and milling operations. This was exactly what factory trawlers did – this was exactly their effect – in the forests of the deep. It could not long go unnoticed.”

Distant Water William Warner

Distant Water Fleets – 1960-1976

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Magnuson Stevens Fishery Conservation and

Management Act History

Originally Passed in 1976 (signed by President Ford)

Congressional Sponsors were:

Senate: Warren Magnuson & Ted Stevens

House: Don Young (AK) and Gerry Studds (MA)

Intent: Get control of foreign fishing to “Americanize”

USA fisheries and create incentives to rebuild USA

fisheries

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Magnuson Stevens Fishery Conservation and

Management Act (1976-present)

• Eight Regional Councils defined:

- New England (ME, NH, MA, RI, CT)

- Mid-Atlantic (NY, NJ, DE, VA, MD, NC)

- South Atlantic (NC, SC, GA, FL)

- Caribbean (VI, PR)

- Gulf of Mexico (FL, AL. MS, LA, TX)

- Pacific (WA, OR, CA, ID)

- North Pacific (AK, WA)

- Western Pacific (HA, SA, NMI, GA)

“…individuals who, by reason of their occupational or other experience,

scientific expertise or training, are knowledgeable regarding the

conservation and management, or the commercial or recreational

harvest, of the fishery resources of the geographical area concerned”.

f

14

8 Regional Fishery Management Councils

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Fishery Management Councils

• Membership of each Council:

- 1 state marine fisheries official from each state

- at least one representative from each state

(fisher, scientist, NGO person)

- several “at large” members (including tribal if

appropriate)

- NMFS Regional Administrator

- non-voting members from USFWS, USCG, DOS

• Role: develop fishery management plans (FMPs) for each

major fishery in the region, develop appropriate plan

amendments, collaborate with contiguous councils, assure

that plans meet the 10 “national standards”, monitor and

modify their plans accordingly

…XI-XV How to Implement

Fisheries Management

There is no manual for what we are attempting!

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10 USA National Standards for

Fishery Management Plans

#1 – Conservation and management measures shall prevent

overfishing while achieving, on a continuing basis, the

optimum yield from each fishery for the United States fishing

industry (optimum yield is “…maximum sustainable yield as

reduced by any relevant economic, social or ecological

factor…”) this standard has primacy over all others

#2 – Conservation and management measures shall be

based upon the best scientific information available

#3 – To the extent practicable, an individual stock of fish shall

be managed as a unit throughout its range, and interrelated

stocks of fish shall be managed as a unit or in close

coordination

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National Standards for Fishery Management Plans

#4 – Conservation and management measures shall not

discriminate between residents of different states. …allocations

shall be (A) fair and equitable to all such fishermen, (B)

reasonably calculated to promote conservation, and (C) carried

out so no entity acquires and excessive share…”

#5 Conservation and management actions shall, where

practicable, consider efficiency in the utilization of fishery

resources; except that no such measure shall have economic

allocation as its sole purpose

#6 – Conservation and management measures shall take into

account and allow for variations in, fisheries, fishery resources

and catches.

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#7 – Conservation and management measures shall, where

practicable, minimize costs and avoid unnecessary duplication

#8 – Conservation and management measures shall, consistent

with the conservation requirements of this act (including the

prevention of overfishing and rebuilding of overfished stocks),

take into account the importance of fishery resources to fishing

communities by utilizing economic and social data and meet the

requirements of (#2) in order to (A) provide for the sustained

participation of such communities, and (B) to the extent

practicable, minimize adverse economic impacts on such

communities

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#9 – Conservation and management measures shall, to the

extent practicable, (A) minimize bycatch and (B) to the extent

bycatch cannot be avoided, minimize the mortality of such

bycatch

#10 – Conservation and management measures shall, to the

extent practicable, promote the safety of human life at sea.

The Fishery Management Plan (FMP) Cycle

• Evaluate Proposed FMPs for NS Consistency

• Approve Measures

• Implement FMP Measures

• Enforce regulations

• Develop FMPs that meet the 10 National Standards

• Recommend Allocations among sectors

• Public Process and Transparency

• Estimate ACLs

• Evaluate Success and options for management

• biological, social, and economic perspectives

Council Scientific and

Statistical Committees

Regional Fishery

Management Councils

National Marine

Fisheries Service

(NMFS)

NMFS, States, Coast

Guard


Science Supporting Fisheries

Management • Basic science questions:

- what is the current biomass relative to the target?

- what is the current harvest rate relative to the target?

- what Annual Catch limit is required to stay under the

maximum fishing mortality rate limit (MFML)

- what combination of ACLs is required to rebuild the

stock (if required) by the end of the rebuilding plan?

• Basic science requirements:

- estimates of the current harvest rate

- estimates of the current stock size

- estimates of the size of “recruit” age classes

- robust projection methods for years t+1, t+2…..

TRENDS IN

RELATIVE

ABUNDANCE

YIELD/RECRUIT

SSB/RECRUIT

RESEARCH

VESSEL

SURVEYS

FISHERIES:

• LANDINGS

• EFFORT

• SAMPLING

INDICES OF

STOCK

ABUNDANCE

AND

RECRUITMENT

FISHERY

CATCHES

OBSERVER

SAMPLING

•DISCARDS

•KEPT

SEQUENTIAL

POPULATION

ANALYSIS

TRENDS IN

RELATIVE

ABUNDANCE

INDICES OF

STOCK

ABUNDANCE:

CPUE/LANDINGS

BIOLOGICAL

DATA • GROWTH

• MORTALITY

• etc.

EVALUATION OF

MANAGEMENT

OPTIONS

CALIBRATION

SCIENTIFIC ADVICE

CATCH AND

ABUNDANCE

PROJECTIONS

CATCH-AT-AGE

MATRIX

(NUMBERS)

• AGE-LENGTH KEY

• SIZE COMPOSITION

• LENGTH/WEIGHT

ESTIMATE CURRENT

ABUNDANCE AND

FISHING MORTALITY

AT AGE (MODELS)

HISTORICAL

ABUNDANCE AND

FISHING MORTALITY

AT AGE

BIOLOGICAL

DATA • GROWTH

• MORTALITY

• etc.

Fishery-

Independent

Data

Fishery-

Dependent

Data

Making a Fish Stock Assessment

Science is the Cornerstone

of Good Management

President Bush signs reauthorization of the M-S FCMA in 2007

Some Highlights from the 2007 Reauthorization of

the Magnuson Stevens Act

End Overfishing in two years for all stocks (2010, 2011)

Annual Catch Limits (ACL) and accountability measures

Strengthen International management (IUU – illegal,

unregulated and unreported)

Improve Fishery-Dependent Data, National Data collection

Programs & Recreational Registration Program in absence

of State Licenses, improved Social & Economic Data

Improved Science supporting Management: Formalize Peer

Review, Funding for Observer Programs

Greater Use of Dedicated Access Privileges to Reduce

Overcapacity (catch shares)

Deep Coral protection; expansion of Ecosystem Management

Plans


Performance Criteria for Fishery

Management - Defining Sustainability Overfishing: The RATE of harvest (percent of the

stock removed by fishing) exceeds the pre-defined

maximum rate (generally about 20% per year is

sustainable)

Overfished: The current SIZE of the population is less

than ½ of the population size required to generate

maximum sustainable yields

If the rate of outflow exceeds the rate

of inflow, the use rate is not

sustainable

If the glass ½ full or less the water

supply is overused

Current Year Stock Status - Status Determination

Biomass / B-MSY

0.00 0.25 0.50 0.75 1.00

F / F

-MS

Y

0.0

0.5

1.0

1.5

2.0

overfishingnot overfished

no overfishingoverfished

no overfishingnot overfished

overfishingoverfished

F-MSY

1/2 B-MSY

MSRA – Job #1 Prevent Overfishing

Alaskan Groundfish Stock Status 2002

B2001/BMSY

0.0 0.5 1.0 1.5 2.0 2.5 3.05.0

F2001/F

MS

Y

0.0

0.5

1.0

1.5

2.0

GA P-CodEBSP-Cod

GA Sable

GAPOP

AI POPEBS Pol

GA Thorny

EBS YF Sole

GA Pol

EBSTurbot

EBS ArrowEBS F SoleGA Arrow

EBSO Flats

AMack EBS

R Sole

no overfishingnot overfished

overover

overfishingnot overfished

noover

FMSY

1/2 BMSY

From Worm,

Hilborn

et al.2009

SCIENCE

World-Wide Stock Status

117 USA Stocks

2012

B/B MSY

Stocks that are Overfished or where Overfishing Still Occurs

January 2015

37 rebuilt stocks as of 2015

Fishery Management Remains Controversial

Significant Issues Remain in Managing USA

Fisheries

• Future of catch share programs

• ACLs require substantially more science

• Mixed Species fisheries and differential

recovery

• Managing recreational fisheries

• Future of marine aquaculture

• Climate change impacts

• Implementing Fishery Management in an

Ecosystem Context

• International provisions, IUU and agreements

Backup Slides

Catch Share Principles

• Allocations

• Transferability

• Distinctions among Sectors

• Duration

• Fishing Community

Sustainability

• Royalties

• Cost Recovery

• Review Processes


Mixed Species Assemblages are

Problematic for Several reasons:

• Differential recovery rates create demand

to target those resources

• Most vulnerable stocks become “weak

stocks”, great demand to “write them off”

(SE reef fisheries, NE groundfishes)

GHG-CO2

Enrichment

Ocean

Acidification Warming

Sea Ice Sea Level

Rise

Fresh

Water

Habitat

Loss

Other

Coastal

Sectors

Resiliency of

Ecosystems and

Coastal Communities

Estuarine

Dependent

Fisheries

productivity

distribution

phenology

productivity

Climate-Related

Issues for Oceans


What is an Ecosystem Approach to

Fisheries Management (EAFM)?

•Operational Ocean Observation System integrating

biology, physical oceanography, chemistry, ocean-

atmosphere links and socio-economic data (at appropriate

geographic scales)

•Ecosystem research plan that enables linking of human

activities to incremental change in ecosystem state

indicators

• Decision Support Tools supported by modeling,

experimental ecology, and observation systems linked to

support adaptive approaches to human uses of marine

ecosystems consistent with goals of sustainable use –

allocation among sectors

“Look at the whole picture,

not just the parts.” Dave Goethel

New England Fishery Management Council

SIMOR Fisheries Constituent Listening

Session - October 2006

“Ecosystem approaches to

ocean resource management

are not well defined and we do

not know how to implement them” UN Law of the Sea Meeting, April 2006

The #1 Myth Concerning EAM:

Consensus Operational Objectives for EAF

Conserve and Manage Species

Minimize Bycatch

Manage Tradeoffs

Account for Feedback Effects

Establish Appropriate Ecosystem Boundaries

Maintain Ecosystem Productivity, Balance Ecosystem Structure

Account for Climate Variability

Use Adaptive Approaches to Management

* PET = Protected, Endangered or Threatened Species

Known Locations of Deep-sea

Corals

locations of documented

deep-water coral presence

U.S. EEZ

“Rolling Closures” In addition to Year-round closures

May

June

May

March

April

Oct- Nov.

2003 VMS Positions For speed </= 3.5 kn Mos. 1-10

pixel is 1’ lat by 1’ long

Multispecies (groundfish)

Trawlers

~60 vessels, >60% of Catch

Habitat Protection is Part of the

Fisheries Law - Activities

•Habitat Protection

– Essential Fish Habitat

– National Fish Habitat Action

Plan

– Coral Conservation

– Fish Passage

•Habitat Restoration

– Community Based

Restoration

– Damage Assessment,

Remediation and Restoration

– Coastal Wetlands Planning

and Protection Act

– Invasive Species

National Marine

Fisheries Service

(NMFS): Stewardship

of Living Marine

Resources for the 21st

Century 44

Under the Community Based Restoration

Program and the Open Rivers Initiative,

1500 miles of blocked streams have been

opened from 1996 until today.

Closed Fishery areas to trawling

Failing the high seas: A global evaluation of

regional fisheries management organizations

Sarika Cullis-Suzuki and Daniel Pauly, Marine

Policy 2010

CCAMLR Commission for the

Conserv. of Antarctic Marine Living

Resources

CCBSP Conv. on the Conserv. &

Mgmt. of the Pollock Resources in the

Centr. Bering Sea

IATTC Inter-American Tropical Tuna

Commission

ICCAT International Commission for

the Conserv. of AtlanticTunas

IPHC International Pacific Halibut

Commission

IWC International Whaling

Commission

NAFO Northwest Atlantic Fisheries

Organization

NASCO North Atlantic Salmon

Conserv. Organization

NPAFC North Pacific Anadromous

Fish Commission 3

PSC Pacific Salmon Commission

WCPFC Western and Central Pacific

Fisheries Commission

USA Memberships

The Fisheries Management Experience in the ... - Oceana Brasil · The Fisheries Management Experience in the United States: History, Legal Instruments and Performance Steven Murawski

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