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Selected tag(s): Fishery Management

Fishermen Embrace Change in the Sinaloa, Mexico Shrimp Fishery: Part II

By / Published: August 20, 2010

The fisherman’s story of frustration with compliance issues under the Sinaloa Shrimp fishery catch share was what I and two of my colleagues continuously heard during our outreach trip in Mexico in July.  After spending a month in fishing camps along the Sinaloa coast giving presentations on catch shares and facilitating other exercises to communicate and dissect the issues of fishery management, we believe the fishermen we reached now understand that achieving success through catch share management will take efforts from all the stakeholders: NGOs, government, and most importantly the fishermen themselves. 

Although it is easy to become frustrated with the challenges of implementing a new fishery management program, we stressed that real lasting change will take time and that our workshops aimed to empower fishermen to begin solving their own problems with compliance. 
 
One thing that has always interested us is what type of management fishermen would implement if they could choose.  To find this out, we played a “fishing game” with three rounds that mimic the problems in the fishery for both the fishermen and the authorities, while inviting fishermen to solve these issues using their own knowledge.

The first round represents the race to fish; the second round a command and control management, and in the third round the fishermen themselves are allowed to make up their own rules.  In many cases the third round resulted in some form of catch shares.  In response, we communicated that although the realities fishermen face are bleak, without their participation and compliance we will never see the third round in reality.

Implementing catch shares in Mexico has many challenges, and illegal fishing is one main roadblock.  In 2009, a historic year for fisheries in Mexico, a TAC was set and shares were allocated for the artisanal blue shrimp fishery.  NGOs and government were working together to improve fishery management, something rare in any country.  

Though in a land where the laws are written well but commonly disobeyed, it has become clear that with catch shares the story is no different.  For this reason it has been of utmost importance for us to maintain contact with the fishermen and continue our presence on the ground.  Adaptive management and design continues to be our motto as we work with fishermen to implement innovative solutions and design to confront these challenges.

During our trip, I was a proud catch share cheerleader, and for this shrimp season in Sinaloa we have restored the faith in many fishermen that catch shares equals change.   Now we must continue to work with fishermen to help design solutions that will turn theory into practice and implement innovative enforcement programs, which will reward those who are part of a catch share and gather their support as advocates and better stewards of their resource.

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The Deadliest Catch? Less Dangerous Under Catch Shares

By / Bio / Published: August 19, 2010

Under conventional fishery management, fishermen often have no choice but to go out in rough seas. Under catch share management, fishermen have the flexibility to wait and fish in good weather and safer waters.

Today the Bureau of Labor Statistics announced that in 2009 commercial fishing once again had the highest fatality rate per 100,000 full-time equivalent workers. The rate was approximately 60 times the average fatality rate for all workers, and was higher than for loggers, police and sheriff’s patrol officers, as well as aircraft pilots and flight engineers.

Why is it so dangerous? To a certain degree, fishing is inherently dangerous – going out on a boat in the middle of the ocean, hauling heavy swinging pots or nets onto a deck covered in gear while waves crash around you carries a certain amount of risk. But the job can be made more dangerous due to restrictive fishery management policies that try to limit fishermen’s catch by severely limiting fishing seasons and/or days-at-sea. When faced with such restrictions, fishermen attempt to maximize their catch in these short windows of time by going out regardless of weather, working longer shifts and overloading their boats with equipment.

Keith “Buddy” Guindon from Galveston, Texas had one of the scariest moments of his career as a lifelong commercial fisherman when the Gulf’s commercial red snapper fishery used to be limited to short seasons. He and his crew fished so long and hard that one night the lookout on duty fell asleep, leaving the boat to drive itself for 2 to 3 hours through the Gulf’s now infamous oil field. Surprisingly, the boat didn’t wreck — avoiding potentially fatal consequences.

One way safety can be improved is with catch share management. Under catch shares, fishermen are required to stay within a specified cap for the season and in return have flexibility about over when to fish. The result is safer jobs. Five years after catch shares were implemented, ten U.S. and British Columbian commercial fisheries saw an average 2.5 fold increase in safety, as measured by lost vessels, search and rescue missions, injuries, deaths and safety violations.

The number of search and rescue missions for Alaska’s halibut and sablefish fishermen declined after catch shares were implemented from 26 and 33 in 1993 and 1994 respectively (pre-catch shares) to just 5 cases in 2007 and 3 in 2008 (under catch shares).   More than 85 percent Alaska halibut fishermen surveyed found fishing to be safer under catch shares.

Many people think of Alaska crab as “The Deadliest Catch” after watching the popular Discovery Channel series filmed in the Bering Sea. The Alaskan crab fisheries were quite deadly: one vessel and five crewmen were lost on average each year in the 1990s. 
The fishery became safer due to both the implementation of a dockside safety monitoring program, and by switching to catch share management. Ending the “race for fish” reduced the incentive for stacking too much gear on board (destabilizing vessels) and reduced pressure to fish in poor weather conditions. It also improved the economic stability of the industry, eliminating less seaworthy vessels and leading to the development of more professional crews, all of which contributed to improved safety.

An article in Proceedings of the Marine Safety & Security Council, the Coast Guard Journal of Safety at Sea states, “an increased number of fishing days, increased flexibility for masters to choose when to fish, and reduced emphasis on catching power and large pot loads potentially have safety benefits and contribute to eliminating vessel losses.”  Since coming under catch share management five years ago, there has been only one crabber in Alaska who has lost his life while fishing.

The experience in Alaska illustrates how catch share programs can play an important role in improving safety. Catch shares reduce the pressure to fish in bad weather and dangerous conditions, as well as allow fishermen to work with more rest in between trips. Because catch share programs are more profitable, fishermen can also better afford to maintain their vessels.

Buddy Guindon is glad that the Gulf’s commercial red snapper fishery is now a catch share.

“It is important to note that some fisheries are far more dangerous than others,” said Dave Preble, a retired charter boat and commercial fisherman from Rhode Island, who is currently on the New England Fishery Management Council. “But all fisheries are safer under quota/hard TAC (catch share) management.”

Linked Sources

Census of Fatal Occupational Injuries Summary, 2009. http://www.bls.gov/news.release/pdf/cfoi.pdf

National Census of Fatal Occupational Injuries in 2009 – Preliminary Results. Press Release. Bureau of Labor Statistics, U.S. Department of Labor. August 19, 2010. http://www.bls.gov/news.release/pdf/cfoi.pdf

National Census of Fatal Occupational Injuries in 2009 – Preliminary Results. Bureau of Labor Statistics, U.S. Department of Labor. Hours-based fatal injury rates by industry, occupation, and selected demographic characteristics. August 19, 2010. http://www.bls.gov/iif/oshwc/cfoi/cfoi_rates_2009hb.pdf

“Assessing the Potential for LAPPs in US Fisheries,” by Redstone Strategy Group, LLC and Environmental Defense, March 2007. http://www.redstonestrategy.com/reports.php?action=detail&publicationID=12

NOAA Fisheries Service. Catch Share Spotlight No. 1. Alaska IFQ Halibut and Sablefish Program, November 2009. http://www.nmfs.noaa.gov/sfa/domes_fish/catchshare/docs/ak_halibut_sablefish.pdf

“Effects of IFQ Management on Fishing Safety: Survey Responses of Alaska Halibut Fishermen,” University of Alaska Institute of Social and Economic Research, May 1999. http://www.iser.uaa.alaska.edu/Projects/ifqsurv/safety.pdf

“Report to the Governor: Three Years of Safety, Stability and Improved Resource Management,” The Coalition for Safe and Sustainable Crab Fisheries, Alaska, Washington and Oregon, 2008. http://www.wafro.com/imageuploads/file175.pdf
 
Proceedings of the Marine Safety & Security Council, the Coast Guard Journal of Safety at Sea, Spring 2009.

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Fishermen Embrace Change in the Sinaloa, Mexico Shrimp Fishery: Part I

By / Published: August 18, 2010
Docked boats in Sinaloa, Mexico

Docked boats in Sinaloa, Mexico

Over the past two months EDF’s outreach team traveled over 200 miles up and down the coastal state of Sinaloa, Mexico visiting five major lagoons that participated in the artisanal shrimp fishery catch share program.   We were all eager to listen to fishermen’s concerns and see first-hand how this new catch share management program was progressing. The artisanal shrimp fleet opened under a catch share management system in September 2009, an initiative of the federal fisheries management authorities – Conapesca and Inapesca, with the support of EDF, WWF, and Noroeste Sustentable – a local Mexican NGO. 

Mexican fishermen during a fishing cooperative meeting on catch shares

Mexican fishermen during a fishing cooperative meeting on catch shares

Conventional wisdom says that people are generally resistant to change, but what we heard from over 1,000 shrimp fishermen was quite the opposite.  In fact, these fishermen want change and are ready to embrace the change that catch shares represents for them and their fishery. Furthermore, EDF’s outreach team was far from the middle aged Mexican male bureaucrat official that is status quo for these fishermen. Without anticipating it, we ended up representing change simply because we were a group of women from all different parts of Mexico coming to talk to them about how to keep their fishery alive and thriving. 

It then became our goal to cultivate trust and encourage these fishermen to “keep the faith” that catch shares is a change for the better.  This story portrays the sentiments of many fishermen that our team met in dozens of fishing camps. 

Imagine you are an artisanal fisherman fishing in the lagoons and bays of Sinaloa, Mexico.  You are a member of the same cooperative your father was during his days as a fishermen; you are a proud fisherman because you work alongside family and neighbors on the waters of the once-bountiful Gulf of California – it is your community and your livelihood. 

Occasionally you daydream about your father’s fish tales of when the mangrove forests were lush and sprawling and the lagoons were teeming with big blue shrimp.  A season’s catch was enough to buy a new pickup truck or take the kids to the doctor and send them to school with new books and tennis shoes. Unfortunately times have changed… 

Today mangroves are being cleared for shrimp farms producing smaller, cheaper shrimp that lowers market prices of all shrimp.  The lagoons are filling up due to sediment washing down from the growing number of agricultural fields, as Sinaloa has become the largest vegetable producing state in Mexico.  As a result, more and more pesticides and other pollutants are entering the lagoons causing shrimp hatches to decline.  Last year’s catch barely put food on the table for your family, and your cooperative is battling debt.  You feel trapped and know that something has to change if you want to return to those days of plenty.  No one is playing by the rules, more and more illegal fishermen are poaching the lagoons, and traditional enforcement efforts are futile. 

But, this past year seemed different.

This past fishing season a team of government and NGO representatives arrived in your community to talk to you about catch shares, an innovative management system that establishes a total allowable catch for the fishery and allocates shares to each cooperative with the goal of ensuring a sustainable catch and improving the value of the fishery.   Meanwhile, Conapesca has paved a brave new path by installing microchips on all the skiffs, handing out identification cards for all licensed fishermen and sending an independent company to monitor your cooperative’s landings.

You listen attentively in the workshops, and considering your circumstance the arguments are compelling.  You speak with your fellow fishermen and everything looks quite promising so you decide to support the transition to catch shares and wait to see how it plays out in practice  You prepare your skiff knowing your cooperative is only getting a small percentage of a total number of shrimp that you have to share with 140 cooperatives, 5,988 skiffs and more than 10,000 fellow fishermen.

The season opens and the usual “race to fish” seems to have subsided.  Unfortunately though, it is an “El Niño” year so the temperatures seem colder than normal and you are catching significantly less than last year.  While the monitoring company appears to be doing their job, you can’t help but notice that many illegal fishermen are still on the water, and can easily land and commercialize their catch – enforcement is lacking. Some of them you can’t blame because they are locals who are just trying to provide for their families. But your frustration mounts as temporary fishermen from other areas, even ones who migrate back from the United States for this lucrative short season, dip into the catch.

You feel robbed because you are playing by the rules, catching your share but know that there are still too many leaks in the system. The season comes to a close and it feels as though little has changed.

Stay tuned for more on the Sinaloa story …

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Pacific Groundfish Catch Shares Approved, Slated to Start Jan 1, 2011

By / Bio / Published: August 12, 2010
Johanna Thomas, EDF Oceans - Pacific Coast Regional Director

Johanna Thomas, EDF Oceans - Pacific Coast Regional Director

After seven years of planning, the catch share program for the Pacific groundfish trawl sector has cleared one of its final regulatory hurdles. On Tuesday, NOAA’s Fisheries Service approved the plan submitted by the Pacific Fisheries Management Council to revitalize the multi-million dollar fishery. The new system joins a spate of other new catch share programs around the country, including one for the iconic New England groundfish fishery and the grouper and red snapper fishery in the Gulf of Mexico.

In the West Coast groundfish sector, fishermen have struggled to make a living under the current management system and have been plagued by increasingly strict regulations to address the incidental catch (bycatch) of depleted fish species. Landings for West Coast trawlers had plummeted 70 percent in the last two decades, and since 1998 revenues have dropped from $47.3 million to $22.2 million.

The new system provides fishermen with a guaranteed percentage of the overall catch, based on the size of their vessel and their fishing history. Under catch shares, fishermen will have much greater freedom to fish when they want, and will also be able to sell or lease their shares to other fishermen. Based on results from other fisheries that have transitioned to catch shares, bycatch is expected to drop dramatically for the West Coast trawl fleet, allowing fish stocks and the industry to recover from years of decline.

We applaud both NOAA and the Pacific Fishery Management Council for taking this important step. This is a new day for a fishery that was declared a disaster just ten years ago. From now on, West Coast trawlers will not be in a rush to fish and deliver their catch. Instead, they will time their trips in accordance with both weather and market forecasts, maximizing their profits while fishing in a safer, more efficient, and sustainable way.

The approved plan includes precedent-setting provisions aimed at protecting coastal communities and the environment. There are several features in the plan that makes it stand out as a model for sustainable and adaptive fisheries management. The Council and NOAA have seen to it that fishermen and coastal communities have a real say in how they adopt new practices and adapt to the catch share system.

Years from now, when we look back on this moment, we’ll see that this was a turning point for West Coast trawlers and the groundfish species they harvest.

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The Future of the Pacific Groundfish Trawl Fishery Without the Catch Share Program

By / Bio / Published: August 5, 2010
Merrick Burden - Senior Fisheries Economist

Merrick Burden - Senior Fisheries Economist

Fishermen in the Pacific groundfish trawl fishery are understandably anxious about the transition to catch shares that starts January 2011, but it’s helpful to consider what is likely to happen if the fishery is left under current management. Perhaps the biggest problem facing fishermen and fishery managers is that eight out of over 90 species caught by fishermen are overfished.  To protect these overfished species, fishery managers have closed parts of the ocean to fishing by creating “Rockfish Conservation Areas” that have changed shape in response to locations of overfished species.  In recent years, productive fishing grounds off Washington and southern Oregon have been among the areas closed.  If current management were to continue there would likely be more closures off other areas of the coast.

I’ve had the experience of working as a fishery manager in the Pacific commercial groundfish fishery for over 6 years and have seen how the existing management system is slowly suffocating the industry and fishing communities. Avoiding closures is just one reason why I see the groundfish trawl IFQ (catch share) program as progress in Pacific groundfish fishery management.

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Civility, A Surprise Visitor to the NOAA Law Enforcement Summit

By / Published: August 4, 2010
Donald Barry - Managing Director, EDF Oceans

Donald Barry - Managing Director, EDF Oceans

I spent  yesterday participating at the NOAA Law Enforcement Summit in Washington DC along with 60 or 70 other stakeholders and a rare thing happened, at least for this city:  Despite having strongly differing views about NOAA’s past law enforcement record and how the agency should move forward in remedying problems from the past, there was no shouting, no name calling , no fist shaking, no angry diatribes.  Instead, there was politeness, constructive comments and interesting and creative ideas on improving law enforcement transparency, consistency and communications.  In polarized Washington DC ? How the heck did that happen?
 
For one thing, the summit was organized and well run by professional facilitators with the participants assigned to small working groups for focused discussions.  The people assigned to my table were an amazing mix of people with extremely different backgrounds with significantly differing views: a representative of the charter boat industry, the head of a state fishery agency, a University of Maryland professor who had conducted exhaustive research on NOAA law enforcement activities, a New England seafood marketer, a NOAA law enforcement agent, a representative of the commercial fishing industry, and myself representing the Environmental Defense Fund. 
 
At least one of our table participants stated firmly at the beginning that he was staunchly anti-law enforcement or something to that effect and my initial internal reaction was “oh boy, here goes the bar fight” but then the unexpected thing happened. A really fascinating conversation began unfolding with everyone being very respectful of each others opinions and folks trying real hard to come up with constructive ideas for helping NOAA enhance the effectiveness of its law enforcement program. 

The professor from Maryland turned out to be a virtual fountain of fascinating statistics and past analyses of NOAA law enforcement activities and the representatives at the table from the Pacific Northwest and Alaska shared insights on how they had resolved many of the issues years ago that are now starting to surface in the South Atlantic. But perhaps the conversation that transfixed me the most was the dialogue which unfolded between the NOAA law enforcement agent and the participant who had initially stated that he was strongly anti-enforcement.  It was respectful, constructive and enlightening. 

By the time the summit ended, the comment that I heard from virtually everyone in our group was that it had been a “really good group of people” at our table and that people had really enjoyed the conversation and the ideas that we had ultimately developed.  Everyone exchanged business cards and I truly expect to touch base with many if not most of these people again.
 
This was the second facilitated summit-like meeting sponsored by NOAA that I have attended in the last three months (the other one involved recreational fishing) and in each case potentially explosive, emotion charged issues were handled diplomatically and effectively, creating an atmosphere that facilitated the exchange of ideas with civility and respect.  Boy, have we been missing those elements recently in the political gladiator wars in this city. 

The hard work on improving and enhancing NOAA law enforcement has just begun and a one day summit is not going to provide all the answers or solutions that will be needed.  Far from it.  But having said that, Dr. Jane Lubchenco and Eric Schwaab have now twice organized meetings where people with strongly held (and often differing) opinions could discuss their differences in a constructive atmosphere without insulting the motives or the values of the person seated next to them.  I generally hate day long meetings but I would willingly come back for a third NOAA summit if it would allow me to work on problem solving again with as interesting and insightful people as the ones sitting around my table.

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