Incentivising selective fishing under a policy to ban discards; lessons from European and global fisheries

The reduction of discards in European fisheries has been identified as a specific objective of the reform of the EU Common Fisheries Policy. To reduce the uncertainty in catch data and the socially unacceptable waste of resources that results from the disposal of catch at sea, a policy to ban discards has been proposed. Discard bans are currently implemented in Alaska, British Columbia, New Zealand, the Faroe Islands, Norway and Iceland. Experience from these countries highlights that a policy of mandatory landings can result in a reduction in discards, but relies upon a high level of surveillance or economic incentives to encourage fishers to land more of their catch. Discard bans will also not result in long term benefits to stocks unless total removals are reduced, through the avoidance of undersized, non-commercial or over quota catch. Experience shows that additional management measures are required to incentivise such a move towards more selective fishing. Success has resulted from the use of area closures and bycatch limits, with potential applications in EU fisheries. However, selective fishing will not be a panacea for the current state of European fisheries; discard bans and accompanying measures must be embedded in a wider management system that constrains fishing mortality to reasonable levels before sustainable exploitation can occur.     

Full retention in tuna fisheries: Benefits,costs and unintended consequences

Several tuna regional fisheries management organizations (t-RFMOs) have adopted retention requirements for skipjack, bigeye and yellowfin tunas caught by purse seine vessels to reduce discards, create disincentives to catch small fish, and incentivize the development and adoption of more selective technologies. Although retention policies in the t-RFMOs have been limited to target tunas in purse seine fisheries, some have advocated for an expansion of those policies, and t-RFMOs could consider expanding retention policies to a greater number of species and/or to other gear types. This paper discusses the benefits and costs of broader retention policies for purse seine and longline tuna fisheries in the western and central Pacific Ocean (WCPO). Using bycatch data from observers and logbooks from the U.S. purse seine and longline fleets operating in the WCPO, this paper documents the types and magnitude of fish discarded. For the purse seine fishery, this information was used to estimate direct impacts of having to off-load at the initial point of landing in key Pacific Island ports. For the longline fishery, estimates of direct impacts were limited to Honolulu and Pago Pago, American Samoa, the two primary ports where U.S. catch is landed. Expanding retention policies beyond the target tunas and to other gear types would further reduce discarding and possibly provide stronger incentives to develop and use more selective techniques. Beyond impacts to the ecosystem and fisher behavior, adopting broader retention policies may have other implications, and this paper explores those implications on vessels, processors, and communities. In general, as is the case with most direct interventions on fishing operations, there will be both benefits and costs, and the magnitude of those impacts will depend on the scope and extent of any expanded retention policy.     

Managing U.S. Atlantic large whale entanglements: Four guiding principles

Fatal entanglements in fishing gear threaten marine mammal populations worldwide. The management of entanglements of large whales, such as the North Atlantic right whale (Eubalaena glacialis), with commercial fisheries, is a challenge given the species’ small population size, economic consequences of regulations, and the general lack of data on entanglements. The U.S. Marine Mammal Protection Act (MMPA) requires development of programs to limit marine mammal entanglement in commercial fishing gear. Following a retrospective look at implementing aspects of the MMPA, a set of guiding principles were developed with associated best practices useful in reducing fatal large whale entanglement in fishing gear. Among these are: 1) involve stakeholders early in the decision making process; 2) establish a transparent management strategy that includes critical needs to guide research; 3) use a variety of tools such as an established process for receiving new information and ideas; and 4) incorporate adaptive management which considers the constraints of dynamic (rapid) changes to some fixed fishing gear. Efforts to reduce worldwide marine mammal bycatch will typically occur in a data-limited environment as experienced with U.S. Atlantic large whale entanglements. The guiding principles will remain as key tools for reducing large whale bycatch in fisheries as they build upon common practices. These insights developed over two decades of management can potentially help others to address similar bycatch problems.     

Analysis of bycatch in the South African midwater trawl fishery for horse mackerel Trachurus capensis based on observer data

The South African midwater trawl fishery targets adult horse mackerel Trachurus capensis. The bulk of the catch is taken by a single freezer-trawler, the biggest fishing vessel operating in South African waters. As fishing takes place off the south coast in ecologically sensitive areas, there are concerns about the potential impacts of this fishing operation on non-target species. Fishing behaviour and bycatch of this fishery from 2004 to 2014 were investigated by analysing observer records with regard to catch composition, volume and temporal and spatial patterns. The midwater trawl fishery was estimated to have caught 25 415 tonnes annually, with a bycatch of 6.9% of the total catch, by weight. There are species overlaps with various fisheries, namely the demersal trawl, small-pelagic, line, shark longline and squid fisheries, yet the total bycatch estimates from this fishery are generally small relative to catches taken in the target fisheries. Bycatch species with the highest average annual catches were chub mackerel Scomber japonicus, redeye roundherring Etrumeus whiteheadi, ribbonfish Lepidopus caudatus and hake Merluccius spp. Large-fauna bycatch species included sunfish Mola mola as well as a number of CITES II- and IUCN-listed species, such as Cape fur seal Arctocephalus pusillus, dusky shark Carcharhinus obscurus, smooth hammerhead shark Sphyrna zygaena and thresher sharks Alopias spp. The 97.9% observer coverage is high and the 6.9% bycatch rate low compared to other South African fisheries; however, due to the large size of the individual hauls (average of 46.3 t), the average sampling rate of 1.56% is low. Our analyses suggest that bycatch in the South African midwater trawl fishery has been lower than in other South African fisheries and similar fisheries elsewhere, but due to the combination of high catch volumes and low sampling rates, estimation errors for rare species are high and there is a substantial risk of incidental unmonitored bycatch of rare large fauna and aggregations of small fauna. This could be mitigated by spatio-temporal management of this fishery, to avoid fishing in high-risk areas, and the introduction of an electronic monitoring programme.     

Migration dynamics of Pacific herring (Clupea pallasii) and response to spring environmental variability in the southeastern Bering Sea

In the southeastern Bering Sea, Pacific herring (Clupea pallasii) migrate from the Pribilof Islands region where they overwinter, to the Alaska coast where they spawn in spring. The migration sustains a nearshore commercial fishery that targets roe-bearing females just prior to spawning. Herring also are taken as bycatch in groundfish trawl fisheries, where time and area closures in these fisheries are triggered by herring bycatch caps. Using herring bycatch data collected since the 1970s by National Marine Fisheries Service (NMFS) observers aboard groundfish fishing vessels, a retrospective analysis was conducted to describe the seasonal migration pattern of Pacific herring in the southeastern Bering Sea and to study its spatial and temporal variability. Observed changes in herring catch per unit of effort were compared with variability in climate and oceanographic conditions. The seasonal migration is complex, but annual shifts in migration routes and a possible northward shift of the overwintering grounds was identified. Pre-spawning herring aggregated in different areas depending on whether spawning occurred early or late in spring. The thermal structure of the ocean around the ice edge appears to influence herring migration timing and route as well as spawning date. Thus, on the basis of recent changes in sea-ice extent and duration, we suggest that the herring bycatch savings area that was developed from data collected in the 1980s should be revised to reflect prevailing conditions.     

Fleet communication to abate fisheries bycatch

Fleet communication systems report near real-time observations of bycatch hotspots to enable a fishery to operate as a coordinated “One Fleet” to substantially reduce fleet-wide capture of protected bycatch species. This benefits the bycatch species per se, reduces waste, and can provide economic benefits to industry by reducing risk of exceeding bycatch thresholds and causing future declines in target species catch levels. We describe case studies of fleet communication programs of the US North Atlantic longline swordfish fishery, US North Pacific and Alaska trawl fisheries, and US Alaska demersal longline fisheries, and identify alternative fleet communication program designs to reduce fisheries bycatch. Evidence supports the inference that these three fleet communication programs substantially reduced fisheries bycatch and provided economic benefits that greatly outweighed operational costs. Fleet communication may be appropriate in fisheries where there are strong economic incentives to reduce bycatch, interactions with bycatch species are rare events, adequate onboard observer coverage exists, and for large fleets, vessels are represented by a fishery association.     

From krill to convenience stores: Forecasting the economic and ecological effects of fisheries management on the US West Coast

There is a need to better understand the linkages between marine ecosystems and the human communities and economies that depend on these systems. Here those linkages are drawn for the California Current on the US West Coast, by combining a fishery ecosystem model (Atlantis) with an economic model (IO-PAC) that traces how changes in seafood landings impact the broader economy. The potential effects of broad fisheries management options are explored, including status quo management, switching effort from trawl to other gears, and spatial management scenarios. Relative to Status Quo, the other scenarios here involved short-term ex-vessel revenue losses, primarily to the bottom trawl fleet. Other fleets, particularly the fixed gear fleet that uses pots and demersal longlines, gained revenue in some scenarios, though spatial closures of Rockfish Conservation Areas reduced revenue to fixed gear fleets. Processor and wholesaler revenue tracked trends in the bottom trawl fleet, which accounted for 58% of total landings by value. Income impacts (employee compensation and earnings of business owners) on the broader economy mirrored the revenue trends. The long-term forecast (15 years) from the Atlantis ecosystem model predicted substantial stock rebuilding and increases in fleet catch. The 15 year projection of Status Quo suggested an additional ∼$27 million in revenue for the fisheries sectors, and an additional $23 million in income and 385 jobs in the broader economy, roughly a 25% increase. Linking the ecological and economic models here has allowed evaluation of fishery management policies using multiple criteria, and comparison of potential economic and conservation trade-offs that stem from management actions.     

Economic characteristics and management challenges of the Hawaii pelagic longline fisheries: Will a catch share program help?

To date, none of the fisheries in the U.S. Pacific Islands Region is managed under a catch share program. In light of the NOAA policy to encourage the use of catch shares as a fishery management tool, the Western Pacific Fishery Management Council (WPFMC) listed six commercial fisheries, including the Hawaii pelagic longline fishery, the largest in the region, as potential candidates for catch share programs. This study examines the baseline economic characteristics and the main challenges facing the Hawaii pelagic longline fishery and evaluates the impact of these on the desirability and feasibility of a catch share program for this particular fishery.     

Characteristics and value of the Thukela Banks crustacean and linefish fisheries,and the potential impacts of changes in river flow

This study describes the Thukela Banks crustacean and linefish fisheries and investigates the potential impacts of reduced flow from the Thukela River on the value of these fisheries. Data were obtained from published and unpublished material, key informants and government records. The crustacean fishery employs about 300 people, and comprises an inshore and offshore fishery. Inshore catches and effort are strongly seasonal, peaking in April to June. The probability of fishing in any particular month is positively correlated with catch per unit effort. Average overall annual catch (inshore and offshore) was estimated to be in the region of 700 tonnes for 1992–2002 with a gross output of about R36.7 million per annum, and a gross value added (net output) of R13.8 million (1 US$ = R6.40; 2003). Inshore prawns were estimated to contribute R8.5 million of the gross output. The Thukela Banks was estimated to contribute R4.5 million and R35 million (rand value in 2003) to the gross output of the commercial linefishery and boat-based recreational angling fishery respectively. Freshwater reduction scenarios yielded 0.7–11% reductions in prawn catches, which translated into only a 1–2% drop in the annual value of the fishery. The latter was attributed to the fishery's diversity (predominantly the buffering effect of bycatch) and the fact that the stocks of the species targeted by the offshore component are largely independent of flow. Catches and value of the recreational boat-based linefishery were predicted to remain fairly constant irrespective of any changes in flow. The commercial linefishery was the most responsive, with a 20% decline in total catch and 17% value predicted for the most extreme flow reduction scenario.     

Further action on bycatch could boost United States fisheries performance

This paper examines the sustainability of United States fisheries managed under the Magnuson-Stevens Fishery Conservation and Management Act, the law that provides the framework for federal fisheries management. Sustainability across a broad suite of criteria, including health of the fished stock, bycatch, and effects on the habitat and ecosystem, was measured against the Monterey Bay Aquarium׳s Seafood Watch criteria for ecological sustainability. Seafood Watch ratings and numerical scores for U.S. federally managed fisheries were analyzed to elucidate strengths and weaknesses among federally-managed fisheries. Of U.S. federally managed fisheries assessed by Seafood Watch, only 2% are rated “Avoid”, and strong ratings for stock health for nearly all fisheries indicate that the Magnuson-Stevens Act is fundamentally succeeding at maintaining or rebuilding the abundance of targeted stocks. The majority (79%) of U.S. fisheries earn the intermediate rating of “Good Alternative”, and 19% earn the top rating of “Best Choice”. Given that U.S. fisheries management is considered among the strongest in the world, this analysis assesses why the majority of U.S. fisheries are not rated “Best Choice”. Fisheries for all variety of species, and using a wide range of fishing methods, can merit “Best Choice” status. However, the majority of U.S. fisheries do not achieve this rating due primarily to bycatch concerns. By improving performance with regard to bycatch, most “Good Alternative” U.S. federal fisheries could reach “Best Choice” status and reap rewards in the marketplace for that recognition. Findings suggest that current science-based management should be maintained in the Magnuson-Stevens Act reauthorization, managers should adopt best practices based on fisheries that are already performing well in the U.S., and more specific federal bycatch mitigation requirements should be implemented.     

Decomposing productivity and efficiency changes in the Alaska head and gut factory trawl fleet

Fishing fleets are subject to numerous factors that affect economic performance, making identification and attribution of such impacts difficult. This paper separately identifies the effects of changing input and output prices, fishery management, and quota allocations on total factor productivity using a Lowe Index. Indices account for technical change and decompose productivity estimates into its technical, environmental, and scale-mix components. This results in measures that reflect shifts in the production frontier, and movements by vessels toward and around the frontier, to capture economies of scale and mix after a policy shift to a catch share program that includes fishing cooperatives and a limited access fishery. The difference between cooperative and limited access vessels is exploited to compare the changes in economic performance between the groups after the introduction of the shift to catch shares and cooperative management, which allowed the vessels to improve the timing and coordination across multi-species fisheries and to decrease incidental catch of quota-limited bycatch species that had closed the target fisheries prematurely in the past. Results indicate that total factor productivity increased significantly after the move to a catch share program, largely due to increases in technical change that shifted out the production frontier of the fishery.     

过度捕捞造成全球海洋渔业的产量损失评估

Many fish stocks in the world are depleted as a result of overexploitation, which reduces stock productivity and results in loss of potential yields. In this study we analyzed the catch trends and approximate thresholds of sustainable fishing for fished stocks to estimate the potential loss of catch and revenue of global fisheries as a result of overexploitation during the period of 1950–2010 in 14 FAO fishing areas. About 35% of stocks in the global marine ocean have or had suffered from overexploitation at present. The global catch losses amounted to 332.8 million tonnes over 1950–2010, resulting in a direct economic loss of US$298.9 billion(constant 2005 US$).Unsustainable fishing caused substantial potential losses worldwide, especially in the northern hemisphere.Estimated potential losses due to overfishing for different groups of resources showed that the low-value but abundant small-medium pelagics made the largest contribution to the global catch loss, with a weight of 265.0 million tonnes. The geographic expansion of overfishing not only showed serial depletion of world's fishery resources, but also reflected how recent trends towards sustainability can stabilize or reverse catch losses.Reduction of global fishing capacity and changes in fishery management systems are necessary if the long-term sustainability of marine fisheries in the world is to be achieved.     

An economic comparison of the commercial and recreational linefisheries in Namibia

The most important Namibian linefish species, the silver kob Argyrosomus inodorus, is currently heavily exploited, and in order to ensure its survival catch restrictions are being introduced. However, kob are exploit ed oth by recreational anglers and by commercial vessels, and it is important to examine the economics of these fisheries in order to determine where catch restrictions will do the least harm to the economy. Data from a survey of commercial fishing vessels are compared with results from earlier surveys of recreational anglers to determine economic values and impacts from both fisheries. The economic benefits are shown to be greatest in recreational angling, less in commercial fishing by large vessels and least in commercial skiboat fishing. This sudy also shows that catch restrictions would do less harm to the economy if applied to the commercial linefishing sector rather than to recreational angling.     

Fishing gear substitution to reduce bycatch and habitat impacts: An example of social–ecological research to inform policy

This study examined the feasibility of gear substitution as a means to reduce bycatch and habitat impacts of fisheries, using a social–ecological systems approach. The U.S. west coast sablefish fishery is an excellent subject for this study, because it permits three different gear types and has a problem with bycatch of overfished species. Bycatch rates were highest in trawls and lowest in pots. Combining interview data with findings from a previous study, affirmed that habitat impacts were highest with trawls and lowest with longlines. Interviews with 44 individuals analyzed using grounded theory yielded several common themes in the opinions of gear substitution. Positive opinion themes included that it would allow better management of the fish populations by reducing bycatch and would allow more business options, flexibility, and increased profit for some trawlers. The main negative opinion theme was that gear substitution could decrease landings needed to support shoreside infrastructure. Most stakeholder groups saw some benefit in gear substitution. Notably, the trawlers voiced a unanimous preference for converting to pots rather than longlines. A scenario analysis revealed that the preferable management option would be long-term gear conversion, but incentives are likely to be an important means of encouraging gear conversion. This ecological impacts rapid assessment provided a regional evaluation of bycatch and habitat impacts that had never been conducted before for these gear types. It also provided scientific support for a regulatory change that legally allows trawlers to practice gear substitution.     

Bridges to best management: Effects of a voluntary bycatch avoidance program in a mid-water trawl fishery

The catch of non-target species or discarding of target species (bycatch) in commercial fisheries can result in negative species level and ecosystem wide impacts as well as adverse social and economic effects. Bycatch has become one of the foremost, global issues of fishery managers and conservationists, especially when the non-target species is from a protected or threatened population. However, the impact and spatial distribution of bycatch is frequently unknown making it difficult to develop effective, justifiable mitigation regulations. This challenge is exemplified by the bycatch of river herring (alewife, Alosa pseudoharengus, and blueback herring, A. aestivalis) and American shad (A. sapidissima) in the northwest Atlantic mid-water trawl fishery targeting Atlantic herring (Clupea harengus) and Atlantic mackerel (Scomber scombrus). As an alternative to immediate management action, a voluntary bycatch avoidance program was established through an industry, state government, and university partnership. Here the program is described and its impact is evaluated by comparing fleet behavior and bycatch prior to and during the program. The combined results suggest that consistent communication, facilitated by the avoidance program, positively influenced fishing habits and played a role in the approximately 60% decrease in total bycatch and 20% decrease in the bycatch ratio observed during the program. However, the success of small scale move-along strategies to reduce bycatch ratios varied greatly in different areas of the fishery and years. This suggests the program is best viewed as an intermediate or complimentary solution. Overall, this project exemplifies of how collaborative programs can help alleviate difficult management scenarios.     

Assessing catch shares' effects evidence from Federal United States and associated British Columbian fisheries

What are the effects of transitioning traditionally managed fisheries to incentive-based catch shares fisheries? In a study of all major United States federal catch share fisheries and associated shared stock fisheries in British Columbia, catch shares result in environmental improvements, economic improvements, and a mixture of changes in social performance, relative to the race for fish under traditional management. Environmentally, compliance with total allowable catch increases and discards decrease. Economically, vessel yields rise, total revenues grow, and long-term stock increases are encouraged. Socially, safety increases, some port areas modestly consolidate, needed processing capacity often reduces, and labor markets shift from part time jobs to full time jobs with similar total employment. Newer catch shares address many social concerns through careful design.     

Effective ecosystem-based management must encourage regulatory compliance: A Gulf of California case study

The Northern Gulf of California is an area important for small-scale fisheries in terms of economic activity and food security, but widespread non-compliance with fisheries regulations impedes effective management of resources and conservation efforts. Where a previous study evaluated quantitatively a theoretical situation in which all regulations are perfectly followed, this article compares a suite of recently proposed ecosystem-based management (EBM) policies against the expected benefits of full enforcement of current regulations. Policies evaluated include no-take marine protected areas (MPAs), breeding period closures, changes in hook size and fishing effort, and gear-specific spatial closures. No-take MPAs yield ecological benefits over a wide range of MPA sizes and characteristics, but do not increase overall catch. Seasonal closures are effective at reducing overfishing for the depleted leopard grouper (Mycteroperca rosacea); changing the hook size of artisanal longlines does not increase catch of either the target species or the assemblage, and gear-specific fishery closures for crab traps near Puerto Peñasco are effective at reducing overfishing of blue crab (Callinectes bellicosus and C. arcuatus). In general, full enforcement of existing regulations outperforms these EBM policies in terms of conservation benefits, but it may be less palatable to stakeholders as it requires major reductions in catch.     

Defining and estimating global marine fisheries bycatch

Unselective fishing catches non-target organisms as ‘bycatch’—an issue of critical ocean conservation and resource management concern. However, the situation is confused because perceptions of target and non-target catch vary widely, impeding efforts to estimate bycatch globally. To remedy this, the term needs to be redefined as a consistent definition that establishes what should be considered bycatch. A new definition is put forward as: ‘bycatch is catch that is either unused or unmanaged’. Applying this definition to global marine fisheries data conservatively indicates that bycatch represents 40.4 percent of global marine catches, exposing systemic gaps in fisheries policy and management.     

Trawl fisheries,catch shares and the protection of benthic marine ecosystems: Has ownership generated incentives for seafloor stewardship?

Proponents of catch share-based fisheries have claimed ecological stewardship can result from the assignment of individual catch quotas. This claim is examined by analyzing the distribution of benthic habitat protection measures adopted by quota-owning industry sectors within the exclusive economic zones (EEZs) of the U.S. (Alaska), New Zealand, and high seas seamounts within the Southern Indian Ocean Deepsea Fishers Association (SIODFA) competence area. Results suggest the protection of both benthic ecosystems and essential fish habitat (EFH) are marginal at best when quota owners have primacy in determining the boundaries of bottom trawl closures. The majority of the areas in these three regions that are closed to trawling are too deep to fish, may not contain vulnerable marine ecosystems, and do not have high abundances of commercially important species. “Freezing the footprint” of bottom trawling is not the best method for benthic habitat protection in areas where the fishing industry is actively fishing vulnerable habitats. Analytical methods should be applied to help determine boundaries of future bottom trawl closures rather than allowing the fishing industry to place benthic protection areas (BPAs) in areas where they are not interested in fishing.     

Are input controls required in individual transferable quota fisheries to address ecosystem based fisheries management objectives?

This study examined the use of Individual Transferable Quotas (ITQs) to effectively manage fishing impacts on all ecosystem components, as required under Ecosystem Based Fisheries Management (EBFM) principles. A consequence of changing from input controls to output-based (catch) management is that the control of the regulating authority tends to be reduced, which may affect the outcomes for ecosystem management. This study reviewed the use of input controls across six fishing methods in 18 ITQ fisheries, which have been independently accredited as ecologically sustainable by the Marine Stewardship Council (12 fisheries) or under Australian environmental legislation for Wildlife Trade Operation (six fisheries). Input controls were retained across a range of ITQ fisheries, with non-selective fisheries such as trawl, gillnet and line employing more input controls than selective fisheries such as purse-seine, pot/trap and dredge. Further case-studies confirmed the widespread and recent use of input controls (spatial and temporal closures) with the aim of managing ecosystem impacts of fishing. The retention of input controls, particularly closures affects the security (quality of title) characteristic of the fishing use right and the theoretical ability of fishers to manage their right for their future benefit. The security characteristic is weakened by closures through loss of access, which undermines industry trust and incentive for long-term decision making. By reducing the security of ITQs, individual fisher incentives and behaviour may separate from societal objectives for sustainability, which was one of the foremost reasons for introducing ITQ management.