EDFish

New Report Provides A Roadmap for Improving Fisheries Management in New England

As the New England Fishery Management Council completes its spring meeting today, Council members, staff and other stakeholders will head back to their homes and offices thinking about implementation of the various decisions made during the three-day meeting.

Thanks to a new report released during the Council meeting, the fisheries community in New England will also be thinking about broader steps needed to improve the overall effectiveness of our fisheries management system. The study behind the report was led by Preston Pate, a former member of the Atlantic States Marine Fisheries Commission and former Director of the North Carolina Division of Marine Fisheries, who presented its findings to the Council alongside Assistant Administrator for NOAA Fisheries, Eric Schwaab.

A review of the management system was requested by Council chair John Pappalardo, a Chatham fisherman and CEO of the Cape Cod Commercial Hook Fishermen’s Association, and subsequently initiated by NMFS. Strong support for both the spirit and recommendations of the report was expressed by Mr. Pappalardo and the Council, as well as Mr. Schwaab and NOAA Fisheries.

Media outlets across New England quickly covered the findings and recommendations in the report, with clear and perhaps unsurprising emphasis on the negative outcomes. And that emphasis is warranted, for although the report notes a considerable number of positive attributes of the region’s management system, the effectiveness of those elements is compromised by the negatives.

But let’s pause and take pride in what is working well in New England, and then get down to business of fixing what is not working well.

In fact, several of the positives identified in the report represent steps already underway toward rectifying the negatives. For example, the important role that managers of the 17 groundfish harvest cooperatives, i.e., “sectors”, are playing in improving collaboration and communication with management was highlighted as an encouraging recent development. This is a development that is making progress toward rectifying one of the major areas needing improvement within NMFS: better outreach and communication with industry. We should think creatively about how to make sector managers more effective in filling that role, and support them in doing so.

The report also identified cooperative research as a positive attribute of the regional management system that provides important information for management, and improves relationships among industry members, scientists and managers. Therefore, increasing cooperative research opportunities is another important strategy for improving the communication and trust deficiencies identified in the report.

The report also highlighted two challenges faced by fisheries management in New England more so than any region in the U.S.: Geography and history. The area under the jurisdiction of the New England Council has relatively high population density, and consequently high anthropogenic impacts, in the coastal region. Also, although the region is comparatively small, it includes four coastal states, so that the number of political and regulatory jurisdictions involved are relatively high compared to other regions.

Our history not only makes successful fisheries management in New England more challenging, but in some ways more important. The fishing traditions in New England are key components of our regional identity and our national heritage. Successes in the region are therefore especially symbolic nationally, and following the roadmap requested by Mr. Pappalardo, made possible by Mr. Schwaab, and delivered by Mr. Pate can help ensure greater success toward recovering and strengthening our invaluable fishing heritage moving forward.

Jake Kritzer is EDF’s Senior Marine Scientist for the New England and Mid-Atlantic regions.  He is also Vice-Chair of the New England Fishery Management Council’s Scientific and Statistical Committee, among other advisory appointments.

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New England Groundfish Fishermen Should Benefit from Unused Quota

With the support of Senator John Kerry, Congressman Bill Keating, and Congressman Barney Frank, New England groundfish fishermen are asking if they can “carry over” a portion of unused catch for the upcoming fishing year.  EDF thinks this makes sense and will work with NMFS and the New England Fishery Management Council to support putting this into place.

Carry-over is generally allowed under catch share programs for two reasons.  First, catch limits in later years are often set assuming a certain level of catch in earlier years.  If the actual catch is less than the maximum allowed in a given year, that typically will result in a higher level of sustainable yield the following year.  Second, allowing carry-over prevents a rush by fishermen to meet their quota limits at the end of the season.  Such a rush could disrupt all the benefits catch shares can deliver with respect to careful and selective fishing practices that minimize bycatch and habitat impacts, and strategic choices of when and where to fish in response to weather conditions, market demand, and other factors.

Harvested catch in first 94% of 2010 fishing year (all sectors) vs. Allowed catch for entire 2010 fishing year (all sectors)In this first year of the New England groundfish sector program, like the first year of many new management programs, fishermen undoubtedly were cautious as they figured out how best to fish their quota.  It makes sense to let fishermen benefit from the conservative harvest seen in the first year of sectors.

Sector fishermen are already allowed to carryover up to 10% of any unused quota.  It is clear from looking at the amount of unused quota (see chart below) that the catch of many stocks will be more than 10% below the science-based catch limits set to guard against overfishing.  Rather than simply forgo the socio-economic benefits to be gained from at least some of the unused quota, we hope fishery managers can allow fishermen to reap some of the rewards of their conservative fishing this year.

Support seems to be steadily building towards having NMFS and the New England Fishery Management Council take active steps to decide what amount of additional unused quota can safely be carried over for the species that were underfished in 2010.  The appropriate percentage levels should be based on the biology of each species, so that we don’t set the fishery back by jeopardizing rebuilding of overfished stocks and compromising the productivity of rebuilt stocks.  However, it is unlikely that all of the unused quota should be carried over.  After all, natural mortality continues to act upon the stock, and will remove some of the fish that would have been harvested had the full quota been fished.  A scientific analysis can determine how much of the fishing year 2010 quota is likely to still be available to the fleet in fishing year 2011.

Taken together, this measure, as well as the increased ACLs for many groundfish stocks next year and fishermen’s continually improving ability to navigate the sector program, should lead to increased yields and revenues across the fleet, and a more economically and environmentally stable fishery in 2011.

Jake Kritzer is EDF’s Senior Marine Scientist for the New England and Mid-Atlantic regions.  He is also Vice-Chair of the New England Fishery Management Council’s Scientific and Statistical Committee, among other advisory appointments.

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Catch Share Conversations: The Atlantic Red Crab Fishery

Red crabs in crates

Red crab.

My last post on EDFish described a day I spent in the tidal creeks of South Carolina fishing for blue crabs with local waterman Fred Dockery.  Today, I’d like to share some valuable insights gleaned from a very different crab fishery.

The deep-sea Atlantic red crab fishery had long escaped the attention of many stakeholders in New England owing to its comparatively small fleet and modest landings relative to larger scale cousins like the sea scallop, groundfish and lobster fisheries. Indeed, the fishery did not even have a management plan until 2002. However, last fall, red crab assumed an unexpected level of attention in response to advice on acceptable biological catch (ABC) from the New England Fishery Management Council’s Scientific and Statistical Committee (SSC, on which I sit) that many deemed to be too low and likely to impose excessive socio-economic hardships. 

Fortunately, the months since the September 2009 Council meeting where the SSC first delivered its red crab ABC saw scientists, managers and the industry take the steps needed to generate better catch advice. Efforts made to generate better catch advice were consistent with sound scientific and fishery management process, thus turning a tense controversy into a valuable example of how to do things better. 

Industry and SSC members worked directly with the red crab Plan Development Team to expand and clarify the science underpinning the ABC.  Also, fellow committee member Dr. Dan Georgianna and I visited the red crab unloading and processing facility in New Bedford just before the March 2010 SSC meeting at which we revisited the red crab ABC.  Our visit aimed to help us learn more about the fishery and its operations to better inform our advice to the Council on both immediate issues and others that might arise down the track, and to help the industry better understand SSC operations and rationale.  The result of those scientific and outreach efforts was an improved analysis and better understanding that gave the SSC more confidence in setting a higher catch limit for 2010 and beyond.

Beyond its constructive participation in the management process, the red crab fishery illustrates the value of cooperative research and innovative business planning in building a more robust and sustainable business model, one that could be enhanced by conversion to catch shares.  We discuss the red crab fishery and its future potential in more detail in the newest edition of CSC – Red Crab Dec 2010 from the EDF Catch Share Design Center.

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Crabbing in South Carolina: A Day on the Water Provides Real-World Perspective

South Carolina waterman, Fred Dockery, hauling crab traps on Stono River in SC.

South Carolina waterman, Fred Dockery, hauling crab traps on Stono River in SC.

Last week, I made my first visit to Charleston, South Carolina for a national meeting of fisheries scientists. Before settling into the meeting room for three long days, I spent a day on the water with Fred Dockery, a local commercial fisherman, to learn more about his work.

Fred and I first got in touch more than a year ago and began a correspondence based on our shared interest in oyster toadfish, a species once described in a scientific paper as “grotesque” and one that only a fisherman or ichthyologist can truly love! Although many people look down upon them, toadfish have made important contributions to neurological research, boost production of natural and cultured shellfish by controlling predators of young clams, oysters, scallops and mussels, and support small commercial fisheries in Delaware Bay and Long Island.

Toadfish were not, however, the order of the day. Instead, our quarry was the famous blue crab, an icon of the Chesapeake Bay but also plentiful in South Carolina waters. Fred primarily fishes for blue crab, but like many small-scale coastal fishermen he earns his living harvesting a variety of local resources, including shrimp, clams and oysters. We also encountered stone crabs in his traps and did so carefully, for their tasty claws are much more powerful than those of a blue crab and can do much more damage.

Stone crabs and blue crabs from the South Carolina Stono River.

Stone crabs and blue crabs from the South Carolina Stono River.

I was not the first guest Fred had welcomed aboard his boat.  Writers from the Food & Wine blog and Hugging the Coast magazine had previously fished with Fred and written about the experience, tying his livelihood with the splendid cuisine of the Carolina lowcountry. In fact, I wasn’t even the first scientist to accompany Fred who has participated in collaborative research with state and federal biologists, and even co-authored a scientific report on a study of dolphin entanglements that he helped conduct.

Fred and I launched his 19-foot boat near the eastern mouth of the Stono River from James Island. The Stono has no purely freshwater stretch along its length, and instead is primarily flooded and drained by tides rising and falling from the Atlantic. At its most upstream reaches, the Stono connects with the North Edisto River and together they form the semicircular backbone of a productive system of tidal creeks and marshes.

Aerial view of the Stono River in South Carolina.

Aerial view of the Stono River in South Carolina.

Hailing from the Northeast, where natural oyster beds and reefs have all but vanished from most coastal waters, I was particularly struck by the abundance of oysters. I noticed how, in many places along the Stono, oysters grow right along the marsh edge, helping to trap and stabilize sediments and buffer the marsh from erosion due to storms and boat wake. The importance of these types of habitat mosaics is a poorly understood and even more poorly appreciated aspect of coastal ecosystems, although a developing restoration plan for the Hudson-Raritan estuary in New York and New Jersey notably includes habitat mosaics as a key goal.

Fred and I worked our way north on the Stono for nearly 10 miles, pulling and resetting traps, and sorting the catch. I saw first-hand the upstream shift from female- to male-dominated catch, and felt the sharp sting resulting from the inescapable reality that blue crabs are much faster than I am, even out of the water and on my turf. Fred, on the other hand, long ago perfected moves that allow him to avoid the steady grunts of “ouch!” coming from my end of the culling board. Still, as the day wore on, practice and trust in my heavy rubber gloves made me bolder with the crabs and quicker with the cull.

Blue crabs by the marsh on the Stono River in SC.

Blue crabs by the marsh on the Stono River in SC.

Our fishing day ended in time for Fred to head downtown for a meeting.  Fred is a fisherman who takes very seriously his responsibilities off the water. He serves on the Board of Directors of the South Carolina Seafood Alliance, and is an active advocate for limited entry in the South Carolina blue crab fishery. The primary goal of limited entry is trap reduction in order to ensure that fishing effort is commensurate with resource productivity. Reducing effort as permits expire and are not renewed will eliminate opportunistic and out-of-state fishermen, and in doing so secure fishing businesses for those who are truly invested (financially and through their identity) in the fishery on a regular basis and for the long-haul.

The timing of my trip with Fred could not have been better, given that my next few days were spent buried in the intricacies of fisheries science. Our excursion provided a renewed awareness of the importance of scientists keeping close to the water through field research, time on commercial fishing boats, or simply sport fishing in their spare time in order to keep the math and models in our heads balanced alongside real-world perspective. I was also reminded of the importance of regular dialogue and cooperation between scientists and fishermen so that each can understand and incorporate the other’s perspectives and ideas in meeting shared goals of productive and sustainable fisheries.

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EDF Scientist Participates in Planning UN Report on Biodiversity

Jake Kritzer is a Senior Scientist for EDF’s Oceans program.

Hong Kong-based and Chinese-flagged cargo ship Heng Chang going through the canal past the town of Gamboa showing the jungle comes right down to the banks of the canal.In anticipation of the International Year of Biodiversity in 2010, the United Nations Development Program (UNDP) is preparing a major report on the role of biodiversity and ecosystem services in sustaining natural resource-based industries in Latin American and the Caribbean. 

The report will have an economic focus and speak to policymakers, highlighting how a shift from “business as usual” management practices that fail to value and protect biodiversity and ecosystem services ultimately lead to higher costs, declines in long-term employment opportunities, and poorer overall economic performance.  Economic sectors to be covered include agriculture, forestry, tourism and, of course, fisheries.

UNDP recruited EDF to help with the fisheries chapter in the report.  So, I traveled to the small rainforest town of Gamboa in Panama’s Canal Zone to meet with experts from across Latin America and around the world to plan the report.  The setting was somewhat surreal, given that we were surrounded by thick, lush jungle, with an array of colorful tropical birds darting about, and the occasional herd of capybara (the world’s largest rodent) wandering into clearing to graze. All of this while with massive cargo ship slowly traversing the Canal while pushed by powerful tugs. 

Hong Kong-based and Chinese-flagged cargo ship Heng Chang going through the canal past the town of Gamboa showing the jungle comes right down to the banks of the canal.The workshop participants were very interested in hearing about the potential for catch shares to achieve sustainable harvest levels of fish stocks, reduce bycatch and habitat impacts, and create a community of fishermen-stewards who will advocate for habitat protection, improvement of water quality, and other needed ecosystem-based management practices. 

Latin America presents many fisheries management challenges, for fisheries in the region are not only an important source of employment in many countries, but also a major source of protein, particularly in small coastal subsistence fishing communities.  Fortunately, the region can look to several successful examples of catch shares management, including both the large ITQ-managed fisheries in Chile and the smaller coastal fisheries managed by “cooperativas” (cooperatives) or territorial use rights (TURFs) in Mexico, Uruguay and other countries. 

As EDF looks to expand upon its existing Latin American efforts in Mexico, Belize and Cuba, this new partnership with UNDP, guided by the course charted in this report, will open exciting new possibilities.

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