Emerging fisheries,emerging fishery interactions with sea turtles: A case study of the large-mesh gillnet fishery for flounder in Pamlico Sound,North Carolina,USA

Emerging fisheries and changes in fishery practices are not always readily apparent, nor are their impacts on non-target species such as seabirds, sea turtles, and marine mammals. Data from several different sources led managers to discover high rates of sea turtle bycatch in an inshore large-mesh gillnet fishery in North Carolina, USA, particularly the emerging deep-water gillnet fishery. This paper reviews the history of how increased numbers of observed stranded sea turtles in 1999 led to the discovery that turtles were becoming entangled in the large-mesh gillnet fishery in Pamlico Sound, North Carolina. It also demonstrates how a variety of data sets from fisheries observers, aerial surveys, and fisheries statistics programs contributed to shaping management of the large-mesh gillnet fishery in Pamlico Sound to decrease turtle bycatch and now point towards the need of additional assessment of gillnet bycatch in other parts of North Carolina. Finally, potential approaches are discussed for a more timely detection of future fishery conflicts and development of a plan to reduce otherwise inevitable bycatch and disruptions to fishing effort.     

Fisheries learning exchanges and sea turtle conservation: An effort between Mexico,Cuba and the U.S. to engage Cuban coastal communities in non-consumptive alternative behaviors

The purpose of this short communication is to describe the Third International Workshop on Sea Turtle Conservation and Fisheries Exchange that took place from April 22–30, 2009 on Cuba’s Isla de la Juventud [Isle of Youth]. A group of 28 fishers, conservationists, marine scientists and fisheries managers from Cuba, Mexico and the U.S. gathered at Siguanea Bay off the island’s southwest coast. The goals of the exchange were to 1) provide a forum for sea turtle experts and fishing communities in Cuba, Mexico, and the U.S. to share experiences on conservation activities, 2) develop the scientific basis for future conservation in this highly biologically important region of Cuba, and 3) increase support by Cuban fishers for local sea turtle conservation efforts. During the exchange, participants met with local Cuban fishers about the challenges of conserving sea turtle populations while maintaining their fishing livelihoods, shared solutions developed by fishers to accomplish the same in Mexico, and undertook field and cultural activities. Key outcomes for the exchange include an improved understanding of sea turtle bycatch off the Isla de la Juventud, enhanced collaboration among the three nations in turtle conservation, and increased motivation by fishers to participate in sea turtle research and conservation. Additionally, as a direct result of this exchange, the community of Cocodrilo on the Isla de la Juventud has hosted annual sea turtle festivals that increase support for turtle conservation efforts by the local community.     

Connecting fishers to conserve a transpacific ambassador: A trinational fisheries learning exchange

Fisheries learning exchanges (FLE) can be useful for enhancing fisheries management. Reversing the decline of the North Pacific loggerhead turtle is a priority articulated in US, Japanese, and Mexican natural resources policy. However, by 2005, while nesting beach protection was strong in Japan and bycatch reduction had been achieved in U.S. Hawaii-based longline fisheries, bycatch mortality was very high in Mexican artisanal fisheries and believed to be problematic in Japanese coastal fisheries. Efforts to conserve the population were hindered by lack of understanding and cooperation by and between fishers, conservation practitioners, scientists, and managers of all three countries. The authors produced a trinational FLE with participants from Japan, Mexico, and Hawaii to share bycatch challenges and develop solutions. The trinational FLE gave fishers and other participants new, otherwise unattainable knowledge, perspectives, and experiences that empowered them as leaders among their peers, resulting in unexpectedly strong cultural and conservation outcomes that included: a) understanding of the myriad threats to loggerheads throughout their ranges and lifetimes, b) development of a transpacific conservation partnerships to undertake coordinated recovery efforts, c) participatory research to develop and test bycatch reduction technological and practical solutions for Japan and Mexico, and d) hundreds of juvenile loggerheads spared per yr from bycatch mortality via changes in fishing practices by FLE participants. The authors conclude that the reciprocal FLE can serve as a practical tool with potential for broad application for empowering fishers and other fisheries stakeholders to improve fisheries.     

Quantitative evaluation of the performance of a permit auction system in reducing bycatch of sea turtles in the Hawaii Swordfish longline fishery

Many authors have suggested the use of a cap and trade auction system to help reduce bycatch—the incidental take of species by fishing gear targeting other species—of sea turtles in the Hawaii-based swordfish longline fishery. However, we know of no quantitative evaluations of the method. We present a simple mathematical model to serve as a framework to evaluate bycatch auction systems quantitatively. We conclude that cap and trade auction systems have the potential to reduce sea turtle bycatch by creating a financial incentive, while keeping permit costs down to 2–3% of total revenues. While stringent regulations aimed at conserving endangered sea turtles would still be essential, implementation of an auction for issuing transferable bycatch permits would likely enhance the economic efficiency of the fleet. Sea turtle mortality could be reduced further if a shrinking cap on total turtle mortality was introduced, taking advantage of the incentives for reducing turtle mortality that are introduced by the cap and trade auction system.     

Impact of protective shark nets on sea turtles in KwaZulu-Natal,South Africa, 1981–2008

Shark nets were established along the KwaZulu-Natal coast in 1952 to protect bathers against shark encounters. Sea turtle bycatch data for the period 1981–2008 in these shark nets indicated that loggerheads Caretta caretta were caught most frequently at 40.9 y^–1 or 1.11 km-net^–1 y^–1, followed by green turtles Chelonia mydas at 0.32 km-net^–1 y^–1 and leatherbacks Dermochelys coriacea at 0.14 km-net^–1 y^–1. Catch rate of loggerheads increased throughout the study period, and was positively correlated with the increase in the number of nesting females from the recovering population in Maputaland, South Africa (r = 0.52, p < 0.05, n = 28). This increase is ascribed to successful nest conservation. Leatherback bycatch remained stable, following their nesting trends, although they receive similar conservation efforts on nesting beaches as loggerheads. Bycatch of green turtles, although not a nesting species in South Africa, was stable over time. Mortality varied between species (from 53.2% to 70.6%) with loggerheads being the most hardy, followed by leatherbacks and green turtles. Few hawksbills Eretmochelys imbricata and olive ridleys Lepidochelys olivacea were caught in the shark nets. Fewer sea turtles are caught by shark nets than by longlines and because the nesting populations of loggerheads, green turtles and leatherbacks are either stable or increasing in the South-West Indian Ocean, shark net bycatch was considered negligible and sustainable.     

Bycatch governance and best practice mitigation technology in global tuna fisheries

Overexploitation of bycatch and target species in marine capture fisheries is the most widespread and direct driver of change and loss of global marine biodiversity. Bycatch in purse seine and pelagic longline tuna fisheries, the two primary gear types for catching tunas, is a primary mortality source of some populations of seabirds, sea turtles, marine mammals and sharks. Bycatch of juvenile tunas and unmarketable species and sizes of other fish in purse seine fisheries, and juvenile swordfish in longline fisheries, contributes to the overexploitation of some stocks, and is an allocation issue. There has been substantial progress in identifying gear technology solutions to seabird and sea turtle bycatch on longlines and to direct dolphin mortality in purse seines. Given sufficient investment, gear technology solutions are probably feasible for the remaining bycatch problems. More comprehensive consideration across species groups is needed to identify conflicts as well as mutual benefits from mitigation methods. Fishery-specific bycatch assessments are necessary to determine the efficacy, economic viability, practicality and safety of alternative mitigation methods. While support for gear technology research and development has generally been strong, political will to achieve broad uptake of best practices has been lacking. The five Regional Fisheries Management Organizations have achieved mixed progress mitigating bycatch. Large gaps remain in both knowledge of ecological risks and governance of bycatch. Most binding conservation and management measures fall short of gear technology best practice. A lack of performance standards, in combination with an inadequate observer coverage for all but large Pacific purse seiners, and incomplete data collection, hinders assessing measures' efficacy. Compliance is probably low due to inadequate surveillance and enforcement. Illegal, unreported and unregulated tuna fishing hampers governance efforts. Replacing consensus-based decision-making and eliminating opt-out provisions would help. Instituting rights-based management measures could elicit improved bycatch mitigation practices. While gradual improvements in an international governance of bycatch can be expected, market-based mechanisms, including retailers and their suppliers working with fisheries to gradually improve practices and governance, promise to be expeditious and effective.     

Sea turtle bycatch to fish catch ratios for differentiating Hawaii longline-caught seafood products

Sea turtles can be incidentally caught in pelagic longline fishing gear targeting tuna and swordfish. Bycatch to fish catch (B/C) ratios can differentiate seafood based on sea turtle impacts. This study demonstrates the use of B/C ratios indexed to the weight of fish catch: (1) to report on the significant progress in reducing sea turtle bycatch in Hawaii's swordfish longline sector and (2) to compare Hawaii and other Pacific longline fisheries by number of sea turtle interactions per weight of catch. Hawaii's longline tuna fishery sets the benchmark of 1 sea turtle interaction per 190,000 kg of tuna caught.     

Unintended consequences: The spillover effects of common property regulations

The closure of the Hawaiian longline swordfish fishery over the period 2001–2004, which was motivated by the protection of endangered sea turtles, created the elements of a natural experiment that allows identification of the market transfer of catch (and sea turtle bycatch) to other regions. This paper exploits the fact that the vessels in the Hawaiian longline fishery sell their catch in the US fresh swordfish market to analyze the pattern of changes in US fresh and frozen swordfish consumption both before and after the closure regulation was imposed. The mechanisms by which any unintended consequences on endangered sea turtles in other fishery locations in the world are shown to take place through the US swordfish market. At the estimated annual market transfer, a bootstrap analysis of the probability distribution of bycatch rates indicates that the regulation led to an additional 2882 sea turtle interactions at the sample means.     

Conservation in a complex management environment: The by-catch of sea turtles in North Carolina’s commercial fisheries

Despite a powerful, federal legislative framework established to protect threatened and endangered species in the United States, conservation actions can be hindered by the complexity of the full management structure. This is particularly true when state and federal agencies share the responsibility to conserve endangered species. To illustrate this point, this paper describes the management of sea turtle by-catch in commercial fisheries within the state waters of North Carolina. It reviews past and present by-catches, summarizes state and federal efforts intended to reduce sea turtle by-catch, and discusses the challenges posed by the involvement of multiple agencies with conflicting objectives. It concludes by recommending fundamental changes to this management framework and, in particular, proposes the establishment of a multilayered stakeholder group that would work to reduce sea turtle by-catch while supporting vibrant commercial fisheries in the state.     

Evaluating the impacts of coastal squeeze on sea turtle nesting

Recent studies have provided theoretical and empirical evidence about the importance of hatchling production for sea turtle population dynamics. Therefore, understanding the effect of nesting habitat loss as a factor leading to hatchling reduction is essential in order to establish conservation plans for the recovery of sea turtle populations. In the present study, we developed a method to quantify habitat loss and link it with hatchling production. We used data for loggerhead sea turtles (Caretta caretta) collected at Sekania nesting beach, western Greece, to describe biological and behavioral attributes of nesting individuals. Spatial characteristics of the nesting site were analyzed and alternative scenarios of habitat loss were examined. We then used circle-packing technique to evaluate the impact of an increasingly reduced available nesting area on the spatial distribution of nests. An increased number of nests within the study site resulted in density-dependent processes regulating hatchling production. Under the different scenarios, we evaluated the risk of the laying nests exceeding the estimated carrying capacity of the nesting beach. Our results clearly demonstrated the need to apply direct and efficient conservation measures at Sekania nesting site to minimize further habitat loss from human-related processes and a rising sea level. The approach developed evaluates the effect of habitat loss upon nesting by linking it with quantifiable processes (density dependence), providing a conservation tool to guide planning decisions towards the conservation of the sea turtle population.     

A review of marine mammal,sea turtle and seabird bycatch in USA fisheries and the role of policy in shaping management

This paper reviews the available information (observer programs, estimates, statutes, regulations) for bycatch of marine mammals, sea turtles, and seabirds in fisheries of the United States. Goals of the review were to evaluate the state of knowledge of bycatch and the role of existing protective legislation in shaping bycatch management for different taxa. Pressing issues are identified, as well as knowledge gaps and policy limitations that hinder multi-species bycatch reduction. The USA has made important progress toward reducing bycatch in its fisheries, but the efficacy of its management has been limited somewhat by a focus on taxon- and fishery-specific regulation and the lack of consistent mandate across taxa for taking a cumulative perspective on bycatch. Applying consistent criteria across taxa for setting bycatch limits (e.g., extending the approach used for marine mammals to sea turtles and seabirds) would be the first step in a multi-species approach to bycatch reduction. A population-based multi-species multi-gear approach to bycatch would help identify priority areas where resources are needed most and can be used most effectively.     

At loggerheads over international bycatch: Initial effects of a unilaterally imposed bycatch reduction policy

The Magnuson-Stevens Fishery Conservation and Management Act (MSA) is the primary law that codifies marine fisheries management in United States federal waters. The MSA was amended in 2006 with Section 610, an international provision that directs the Secretary of Commerce to unilaterally identify foreign nations engaged in the incidental capture (bycatch) of protected living marine resources (PLMRs) under specific conditions. In 2013 the United States identified Mexico for bycatch of a PLMR – the North Pacific loggerhead turtle – representing the first time a nation has been identified for bycatch under section 610. This paper evaluates the initial effects of the identification on loggerhead bycatch management efforts in Mexico and provides policy recommendations for improving the law and its implementation. In the wake of the unilateral identification, Mexico downplayed and denied the bycatch problem that their agencies had previously accepted and cancelled a bycatch research partnership between their federal fisheries science agency and U.S. researchers. Moreover, fishers invested in bycatch reduction and monitoring programs ceased to participate, jeopardizing their understanding of the problem and their co-development of bycatch solutions. However, the identification and subsequent consultation process ultimately resulted in Mexico implementing federal loggerhead bycatch regulations that are temporarily comparable with relevant U.S. measures. These regulations establish a temporary fisheries reserve (authorized for two years) that includes monitoring of bycatch, a loggerhead bycatch mortality cap, temporal and spatial restrictions on fishing gear and practices, and a closure of all finfish fisheries during the summer of 2016. As a result, turtle bycatch was likely substantially reduced in 2016, but at the cost of artisanal fishers' entire seasonal income. Policy recommendations are made, highlighting the need to: 1) better assess the socioeconomic, political, and environmental consequences associated with using the threat of trade sanctions to compel nations to reduce their bycatch; and 2) facilitate a more consistent consideration of bycatch data across nations such that the current policy does not create a disincentive for other nations to assess or report PLMR bycatch.     

Efforts to reduce sea turtle bycatch in the shrimp fishery in Northeastern Brazil through a co-management process

The neritic waters of the state of Sergipe in Northeastern Brazil is adjacent to the main nesting area of the olive ridley sea turtles (Lepidochelys olivacea) in the Western Atlantic Ocean and an important area for shrimp trawl fishery. To address the problem of incidental mortality of sea turtles captured during trawling and reduce the risk of overexploitation of shrimp stocks, Projeto TAMAR/ICMBio, a Brazilian sea turtle conservation program, has adopted two main strategies: (1) the implementation of a marine monitoring program and (2) active participation in local forums. This paper describes the conflicts among stakeholders, the arrangements and established mechanisms of negotiation aimed to protect sea turtles and shrimp grounds, and strategies to reduce conflicts between user groups. The analysis of this co-management process highlights the importance of stakeholder participation in resource management decision-making through a cooperative process, the role assumed by non-governmental organizations as mediators, and the factors that influence this system. The key factors and actions learnt from the current study include clear identification of the conflicts, identification of stakeholders – both local and external, and local leaders, encouragement of actors and leaders to participate, support and strengthening of local groups, legitimization of the discussion forums through involvement with government, formalization of decisions taken through legislation, and monitoring of the management efficacy.     

Understanding nesting ecology and behaviour of green marine turtles at Setiu,Terengganu, Malaysia

In this paper, we emphasize the importance of understanding the nesting ecology and nesting behaviour of green marine turtles (Chelonia mydas). Data were collected from 2007 until 2012 from nesting beaches at Setiu Terengganu, Malaysia. We focused on one of the beaches, Telaga Papan, based on data collected in 2012. We recorded the distribution of nesting areas, the emergence hour and the correlation between successful nesting attempts and false crawls. Telaga Papan had a significantly higher distribution of green marine turtle nesting compared with the other five beaches (ANOVA, F_5,42 = 8.874, P < 0.01, mean = 36.750 ± 3.727). The highest number of successful nesting attempts was recorded in 2012 (mean = 28.714). A majority of the species landed between 22:00 and 23:59 h (25%). There was a strong correlation between successful nesting attempts and false crawls (r_s = 0.883, P = 0.02). Based on these findings on the nesting ecology and nesting behaviour of green marine turtles, we suggest that scientific research, strict monitoring, awareness programs and policy implementation should be carried out proactively. Such activities are necessary to reduce the anthropogenic pressures at the nesting beaches as well as to ensure more successful nesting attempts of green marine turtles in Setiu.     

Legal and institutional tools to mitigate marine turtle bycatch: Argentina as a case study

This paper explores conservation policy pertinent to three species of marine turtles affected by fisheries, while crossing jurisdictions in their seasonal migrations through the SW Atlantic, particularly the Argentine waters. This case study reviews local legal and institutional frameworks for Argentina and concludes that tools are in place to monitor and mitigate the negative impact of bycatch on the populations. Argentina is signatory of the most relevant international treaties aimed at protecting transboundary species (e.g. Inter-American Convention for the Protection and Conservation of Sea Turtles, Convention on the Conservation of Migratory Species of Wild Animals). Legislation also exists at the federal and provincial levels. Yet, accidental captures continue to occur due to weaknesses in enforcement and the low priority that conservation has in fisheries management decisions. Some urgent practical actions supported by policy are suggested: (a) placement of on-board observers in coastal fishing fleets, (b) application of existing mitigation measures to reduce bycatch, (c) design of a national plan of action for marine turtles in Argentina, and (d) development of a regional plan between Argentina, Brazil and Uruguay. Stakeholder involvement, especially the fishing sector but also the civil society, would be important to energize practical and effective conservation decisions. The example of Argentina is typical for the region and may apply to other countries as well. The conservation community requires investing more in the application of policy, concomitant with perfecting legal tools.     

Consumptive versus non-consumptive use of sea turtles? Stakeholder perceptions about sustainable use in three communities near Cahuita National Park,Costa Rica

The decline in populations of sea turtles has heightened controversy between two contrasting strategies for their sustainable management: consumptive use versus non-consumptive use. This study investigates perceptions held by individuals in three communities bordering a marine protected area in Costa Rica about consumptive and non-consumptive use of sea turtles on nesting beaches to determine how best to achieve sustainable management of the species. Face-to-face interviews (n=48 community members and n=8 key informants) were conducted in three communities (Cahuita Town, Hone Creek, and Playa Negra) during April and May 2009. The research found that in each community, residents' perceptions about consumptive and non-consumptive use were divided into four categories: norm-activated pro- and anti-environmentalism; and rationally self-interested pro- and anti-environmentalism. Given this perceptual diversity, it seems clear that no single management strategy would work successfully across all three communities, but that customised management measures were required to manage sea turtle populations in each area. The wider implication of this study is that there is no simple panacea for dealing with declining populations of sea turtles: each situation is sui generis, requiring measures tailored exclusively to its particular circumstances.     

Leatherback turtle conservation in the Caribbean UK overseas territories: Act local,think global?

Leatherback turtles migrate across the jurisdictions of multiple sovereign states and present complex challenges to those responsible for their conservation. Concern for marine turtles has led to their protection under range state legislation and protective listing under a suite of multilateral environmental agreements. Evidence suggests that a distinct, reproductive sub-population of leatherback turtles is shared amongst a number of northern Caribbean range states, including the UK overseas territories (UKOTs) of Anguilla and the British Virgin Islands (BVI). The post-nesting movements of three female leatherbacks were tracked after they nested in Anguilla (n=1, tracked for 228 days) and the BVI (n=2, tracked for 12 and 13 days, respectively). These turtles used territories of multiple range states, with the leatherback tracked from Anguilla also migrating through high seas to foraging grounds in Canadian waters. In addition, a review of regional leatherback flipper tag return records helps define the range of this northern Caribbean nesting population (NCNP), which appears to be in recovery in some range states. While national legislation and conservation efforts appear to have contributed to these population recoveries, most relevant MEAs appear to have played little or no role. However, opportunities for constructive dialogue between NCNP range states exist under the Cartagena Convention the United Nations Convention on the Law of the Sea and the International Commission for the Conservation of Atlantic Tuna (ICCAT). UKOT conservation managers would, therefore, be justified in prioritising unilateral leatherback conservation action, and multilateral efforts through the Cartagena convention and regional fishery management mechanisms, over potentially costly accessions to additional MEAs.     

Since turtles cannot talk: what beak movement sensors can tell us about the feeding ecology of neritic loggerhead turtles,Caretta caretta

Understanding the role that consumers play in an ecosystem requires knowledge about food selection and intake rates. However, such basic data are often difficult to obtain, particularly for marine animals that are not easy to observe. To overcome this problem, a beak movement sensor was employed on a free‐ranging loggerhead turtle in a neritic foraging habitat at the Domitian littoral (SW Italy). In combination with gastrointestinal content analysis from six turtles found dead in the same area we sought to identify which beak movement patterns were associated with which prey type, and to quantify the ingestion of the various prey types. Brachyuran crabs (100% occurrence), in particular Liocarcinus vernalis, and small molluscs (66% occurrence) were found most frequently in the stomach and intestine of the turtles. Beak movements revealed average ingestion rates of (mean ± SE) 0.27 ± 0.13 food items per minute and that feeding occurred predominantly during dives >4 m and during early morning and evening. Interestingly, the time spent feeding amounted to only 2.2% of the total observation time, whereas feeding‐associated dives added up to just above 10% of the total time. We thus established that loggerhead turtles in this area are specialised on brachyuran crabs, on which they prey with high success during the short time dedicated to foraging. This information strengthens our knowledge about turtle–prey and turtle–habitat interactions, which are essential data to delineate the role that turtles play in this and similar marine ecosystems. Moreover, since the same area is also intensively used by the regional bottom trawl fishery, our results have important conservation implications, because they clearly show the time of day and water depths for which fishing activity should be regulated to reduce the number of turtles that are currently being incidentally caught in this area.     

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.