Improving Compliance in U.S. Federal Fisheries: An Enforcement Agency Perspective

Fisheries enforcement is frequently overlooked in the U.S. federal fisheries management process. However, absent high levels of compliance, without fisheries enforcement even the most robust fisheries management plan may fail. Coupling past studies of compliance in fisheries with studies of regulatory enforcement, this paper identifies several measures for increasing the effectiveness of U.S. federal fisheries enforcement. Implementing these measures into the United States Coast Guard's fisheries law enforcement program will make the Agency's enforcement efforts more effective, potentially increasing the level of compliance in federal fisheries.­     

Eliminating driftnets from the North Pacific Ocean: U.S.—Japanese cooperation in the international North Pacific Fisheries Commission, 1953–1993

Japanese negotiators agreed to eliminate driftnet fishing for salmon in the North Pacific Ocean by the end of 1992. The Japanese high seas fishing fleet for salmon had been an economically valuable yet environmentally destructive operation for four decades. The Japanese government progressively phased out lucrative Japanese salmon fishing operations in the North Pacific, apparently capitulating to U.S. pressure. No U.S. enforcement with punitive sanctions proved necessary, however. Specific characteristics of the international market created the possibility of an environmentally benign international agreement. International integration of the market for fisheries products was made possible by the high market value of salmon in the United States and in Japan. In the 1970s, foreign direct investment from vertically integrated, Tokyo‐based fishing firms into canning and processing operations in Alaska and the Pacific Northwest facilitated U.S. Japanese agreement. The high existence (nonuse) value of marine mammals in the United States was also an important factor.     

The need for conservation and management of Philippine coral reefs

Synopsis The biological diversity and productivity of Philippine coral reefs are threatened by siltation, destructive fishing methods, coral and shell collecting and overfishing. Destructive fishing includes: the widespread, illegal use of explosives; poisons such as sodium cyanide; muro-ami and kayakas fishing; and trawling. The recent decline in catch rates threatens the livelihood of 700 000 near-shore subsistence fishermen who catch 55% of the total landings. The new government under Corazon Aquino wishes to protect the marine environment through the creation of a viable marine conservation management plan, enforcement of existing laws and through cooperation between government, non-government and international agencies to provide education and research. The Department of Agriculture, which has the authority for fisheries, has designated the International Marinelife Alliance as the lead non-government agency involved with fund raising, net-training and finding alternatives to destructive fishing methods.This essay addresses the societal relationships of village fishery to government, aid organizations, and science. Vadim Vladykov always maintained close relationship with fishermen and devoted over a year of his life to helping develop fisheries in Iran.     

Biodiversity Offsets: A Cost-Effective Interim Solution to Seabird Bycatch in Fisheries?

The concept of biodiversity offsets is well established as an approach to environmental management. The concept has been suggested for environmental management in fisheries, particularly in relation to the substantial numbers of non-target species--seabirds in particular--caught and killed as incidental bycatch during fishing activities. Substantial areas of fisheries are being closed to protect these species at great cost to the fishing industry. However, other actions may be taken to offset the impact of fishing on these populations at lower cost to the fishing industry. This idea, however, has attracted severe criticism largely as it does not address the underlying externality problems created by the fishing sector, namely seabird fishing mortality. In this paper, we re-examine the potential role of compensatory mitigation as a fisheries management tool, although from the perspective of being an interim management measure while more long-lasting solutions to the problem are found. We re-model an example previously examined by both proponents and opponents of the approach, namely the cost effectiveness of rodent control relative to fishery area closures for the conservation of a seabird population adversely affected by an Australian tuna fishery. We find that, in the example being examined, invasive rodent eradication is at least 10 times more cost effective than area closures. We conclude that, while this does not solve the actual bycatch problem, it may provide breathing space for both the seabird species and the industry to find longer term means of reducing bycatch.     

Rio Plus Ten: The Evolution of International Marine Fisheries Governance

The 1992 United Nations Conference on Environment and Development (UNCED) held at Rio de Janeiro was a seminal event that addressed the interplay of economic development and human use of natural resources with the need for protection of the natural environment. The general principles embodied in the Rio Declaration and the provisions included in the comprehensive Agenda 21 expressed the expectations of the international community and set the stage for national and international policy and legal developments in a host of different areas, including the governance of the ocean's living resources. Chapter 17 of Agenda 21 focused on the world's oceans and seas and crystallized growing world community concern with problems such as unregulated fishing, fishing vessel reflagging, overcapitalization of the fishing industry, inadequate fisheries enforcement, and insufficient cooperation among states. Further, the documentation of UNCED evidenced interest in new governance frameworks and concepts such as ecosystem-based management and precaution. In retrospect, it is clear that the ideas discussed at Rio have been important and have been implemented by a variety of governments and international organizations as they exercise their responsibilities for fisheries management. This article examines the principles and approaches suggested by UNCED as they relate to world fisheries and considers how they have been reflected in global fishery agreements such as the FAO Compliance Agreement and the United Nations Fish Stocks Agreement, in the work of international fishery bodies such as the FAO Committee on Fisheries, and in the efforts of a number of regional fishery commissions. It also addresses the significance and ramifications of changes suggested by Agenda 21 for the future conduct and management of world marine fisheries.     

The sleeping policeman: understanding issues of enforcement and compliance in conservation

Rules governing human behaviour are at the heart of every system of natural resource management. Without compliance, however, rules are meaningless so effective enforcement is essential if conservation is to be successful. There is a large body of theory concerning enforcement and compliance with rules spread over several disciplines, including psychology, economics and sociology. However, there have been few attempts to extend this theory to conservation applications and there is little practical guidance for managers and conservation planners on the optimal design of enforcement programmes. We review approaches to understanding why individuals break rules and how optimal policy choices can reduce rule-breaking, highlighting research which has specifically dealt with natural resources. Because of the difficulty of studying rule-breaking behaviour directly, modelling approaches have been particularly important and have been used to explore behaviour at the individual, group and institutional levels. We illustrate the application of models of enforcement and compliance to conservation using the African elephant Loxodonta africana as a case study. Further work is needed to create practical tools which can be applied to the design of enforcement measures in conservation. Particular challenges include understanding the importance of violations of rationality assumptions and incorporating intertemporal choice in models of decision making. In conclusion, we argue that a new field of robust theory and practice is urgently needed to ensure that issues of enforcement and compliance do not undermine conservation initiatives.     

Derelict Fishing Line Provides a Useful Proxy for Estimating Levels of Non-Compliance with No-Take Marine Reserves

No-take marine reserves (NTMRs) are increasingly being established to conserve or restore biodiversity and to enhance the sustainability of fisheries. Although effectively designed and protected NTMR networks can yield conservation and fishery benefits, reserve effects often fail to manifest in systems where there are high levels of non-compliance by fishers (poaching). Obtaining reliable estimates of NTMR non-compliance can be expensive and logistically challenging, particularly in areas with limited or non-existent resources for conducting surveillance and enforcement. Here we assess the utility of density estimates and re-accumulation rates of derelict (lost and abandoned) fishing line as a proxy for fishing effort and NTMR non-compliance on fringing coral reefs in three island groups of the Great Barrier Reef Marine Park (GBRMP), Australia. Densities of derelict fishing line were consistently lower on reefs within old (>20 year) NTMRs than on non-NTMR reefs (significantly in the Palm and Whitsunday Islands), whereas line densities did not differ significantly between reefs in new NTMRs (5 years of protection) and non-NTMR reefs. A manipulative experiment in which derelict fishing lines were removed from a subset of the monitoring sites demonstrated that lines re-accumulated on NTMR reefs at approximately one third (32.4%) of the rate observed on non-NTMR reefs over a thirty-two month period. Although these inshore NTMRs have long been considered some of the best protected within the GBRMP, evidence presented here suggests that the level of non-compliance with NTMR regulations is higher than previously assumed.     

Lake Victoria fisheries: the Kenyan reality and environmental implications

Synopsis The introduction of the Nile perch into Lake Victoria has dramatically altered the fishery in that lake and contributed to the decline of the fishery for indigenous tilapias. One sector of the fishery in Lake Victoria has benefitted from the Nile perch introduction, although catches have declined in recent years. Inefficient enforcement of fisheries regulations has had a detrimental effect on indigenous species but may also have contributed to the recent decline in Nile perch catches. Fisheries development plans have tended to favour capital-intensive fisheries and to ignore small scale subsistence fisheries. A case study at Wichlum Beach on the Kenyan shores of Lake Victoria has revealed the efficiency of traditional fishing and fish drying methods as well as the high ecological costs of the practice of kiln-drying Nile perch. Forty-five tons of firewood are used per month at Wichlum Beach alone for kiln-drying perch. The increased economic viability of the fishery has attracted professionals into the industry and resulted in the development of an export-oriented trade. The Yala Swamp adjacent to Lake Victoria has been extensively drained as part of a large land reclamation scheme and more draining is planned. Increased environmental awareness in Kenya, and Kenya's membership in the Convention on Wetlands of International Importance, has resulted in a critical review of these plans.     

Inclusion of discard assessment indicators in fisheries life cycle assessment studies. Expanding the use of fishery-specific impact categories

Purpose

The main purpose of this article is to propose specific discard indexes for their development in fisheries life cycle assessment (LCA). The objective of these is to characterize and standardize discards in worldwide fisheries.

Methods

The global discard index (GDI) is intended to be an easily understood index whose use is extendible to any fishery in the world. It is presented as a dynamic index that aims to characterize and standardize discard rates between fisheries by direct comparison with the global discard rates reported periodically by FAO. Furthermore, a simplified approach excluding characterization is presented for scenarios in which the data quality linked to discards is poor. Two additional indicators, survival rate of discards and slipping, are proposed to improve the reporting and quantification of biomass waste by fishing vessels.

Results

GDI implementation, together with two other fishery-specific impact categories, showed remarkable differences in the environmental impacts of several fishing fleets when compared with the obtained results for conventional impact categories. Results for the conventional categories were strongly influenced by the energy use in the fishery, while results obtained for fishery-specific categories presented variable trends due to the dependence on a wider range of factors. GDI inclusion favored direct comparison with worldwide average discard rates on a time scale basis, from a wet weight or a net primary productivity perspective, depending on the selected approach.

Conclusions

Proposed indicators achieved the important objective of integrating discard data as a fishery-specific impact in fishery LCAs, increasing the benefits of implementing LCA in fisheries assessment. Specific advantages of these indicators include assessing changes in capture and landing composition, evaluating the selectivity of the fishing gears, and monitoring the behavior of fisheries in a normalized context respect to other fisheries. GDI was identified as an adequate methodological improvement for regular use in fisheries LCA. Future developments GDI include its harmonization for inclusion in damage assessment.     

The great scallop: an endangered species

The great scallop is a highly valued marine species. It makes its home on rocky seabeds around the British Isles and has been heavily exploited. Fears that natural stocks are showing signs of over fishing are being remedied by strict enforcement of fisheries legislation and by the development of stock enhancement practices.     

Small-Scale Spatial Variation in Population Dynamics and Fishermen Response in a Coastal Marine Fishery

A major challenge for small-scale fisheries management is high spatial variability in the demography and life history characteristics of target species. Implementation of local management actions that can reduce overfishing and maximize yields requires quantifying ecological heterogeneity at small spatial scales and is therefore limited by available resources and data. Collaborative fisheries research (CFR) is an effective means to collect essential fishery information at local scales, and to develop the social, technical, and logistical framework for fisheries management innovation. We used a CFR approach with fishing partners to collect and analyze geographically precise demographic information for grass rockfish (Sebastes rastrelliger), a sedentary, nearshore species harvested in the live fish fishery on the West Coast of the USA. Data were used to estimate geographically distinct growth rates, ages, mortality, and length frequency distributions in two environmental subregions of the Santa Barbara Channel, CA, USA. Results indicated the existence of two subpopulations; one located in the relatively cold, high productivity western Channel, and another in the relatively warm, low productivity eastern Channel. We parameterized yield per recruit models, the results of which suggested nearly twice as much yield per recruit in the high productivity subregion relative to the low productivity subregion. The spatial distribution of fishing in the two environmental subregions demonstrated a similar pattern to the yield per recruit outputs with greater landings, effort, and catch per unit effort in the high productivity subregion relative to the low productivity subregion. Understanding how spatial variability in stock dynamics translates to variability in fishery yield and distribution of effort is important to developing management plans that maximize fishing opportunities and conservation benefits at local scales.     

Ecological, environmental and socioeconomic aspects of the Lake Victoria's introduced Nile perch fishery in relation to the native fisheries and the species culture potential: lessons to learn

Inland fishery ecosystems in Africa are characterized by patterns of overexploitation, environmental degradation and exotic species introductions. Ecological complexity and diversity of aquatic habitats dictate that fishes in general are not evenly distributed in a water body. However, fisheries management regimes tend to ignore this basic principle, assume generalized conditions in a water body, and focus more on ‘desired’ objectives such as maximizing catch. The result is to disregard fish habitat boundaries and anthropogenic influences from the catchment that influence fish production. Overexploitation and environmental degradation disrupt sustainable socioeconomic benefits from the fisheries, create uncertainty among investors, but leave some managers calling for more information with the expectation that the fisheries will recover with time. Open access to the fisheries and full control of fishing effort remain challenges for managers. Exotic species introductions and fish farming can increase production, but such interventions require firm commitment to sound ecological principles and strict enforcement of recommended conservation and co‐management measures in capture fisheries. The general tendency to downplay fishing effort issues, other ecosystem values and functions or rely on temperate fisheries models until a new cycle of overexploitation emerges, characterizes many management patterns in inland fisheries. Aquaculture is not an option to challenges in capture fisheries management. Aquaculture should be developed to increase fish production but even this practice may have negative environmental impacts depending on practice and scale. Decades of information on Lake Victoria fisheries trends and aquaculture development did not stop the collapse of native fisheries. The successfully introduced Nile perch (Lates niloticus) has shown signs of overexploitation and aquaculture has again been considered as the option. By reviewing significant trends associated with Nile perch and its feasibility in aquaculture this paper uses Lake Victoria to illustrate ‘special interest management’ targeting selected species of fish rather than the fisheries.     

Performance of iSharkFin in the identification of wet dorsal fins from priority shark species

The past decade has seen a considerable rise in international concern regarding the conservation status of sharks and rays. The demand for highly prized shark commodities continues to fuel the international trade and gives fisheries incentive to use these resources, which have a low intrinsic capability to recover. Recognising the urgency for regulation, many countries voted to include more shark and ray species in the Appendices of the Convention on International Trade in Endangered Species of Wild Fauna and Flora (CITES). However, the identification of fins in fisheries landings before they enter international trade is a major limitation for CITES compliance. This study reports the current performance of the iSharkFin system, a machine learning technology which aims to allow users to identify the species of a wet shark dorsal fin from its image. Photographs of 1147 wet dorsal fins from 39 shark species, collected in 12 countries, were used to train the algorithm over a four-year period. As new cohorts of images were used to test the performance of the learning algorithm, the accuracy of species assignments of known specimens was variable but did increase, reaching 85.3% and 59.1% at genus and species level respectively. The accuracy in predicting CITES-listed sharks versus unlisted sharks was 94.0% based on the 39 species currently represented in the baseline. Our results suggest that if supplied with high data inputs for specific fisheries assemblages and accompanied by user training, iSharkFin has promise for site-specific development as a rapid field identification tool in fisheries monitoring, and as a screening tool alongside traditional field morphology to detect potential CITES specimens for fisheries compliance and enforcement.     

Characterizing fishing effort and spatial extent of coastal fisheries

Biodiverse coastal zones are often areas of intense fishing pressure due to the high relative density of fishing capacity in these nearshore regions. Although overcapacity is one of the central challenges to fisheries sustainability in coastal zones, accurate estimates of fishing pressure in coastal zones are limited, hampering the assessment of the direct and collateral impacts (e.g., habitat degradation, bycatch) of fishing. We compiled a comprehensive database of fishing effort metrics and the corresponding spatial limits of fisheries and used a spatial analysis program (FEET) to map fishing effort density (measured as boat-meters per km2) in the coastal zones of six ocean regions. We also considered the utility of a number of socioeconomic variables as indicators of fishing pressure at the national level; fishing density increased as a function of population size and decreased as a function of coastline length. Our mapping exercise points to intra and interregional 'hotspots' of coastal fishing pressure. The significant and intuitive relationships we found between fishing density and population size and coastline length may help with coarse regional characterizations of fishing pressure. However, spatially-delimited fishing effort data are needed to accurately map fishing hotspots, i.e., areas of intense fishing activity. We suggest that estimates of fishing effort, not just target catch or yield, serve as a necessary measure of fishing activity, which is a key link to evaluating sustainability and environmental impacts of coastal fisheries.     

Modelling the Spatial Behaviour of a Tropical Tuna Purse Seine Fleet

Industrial tuna fisheries operate in the Indian, Atlantic and Pacific Oceans, but concerns over sustainability and environmental impacts of these fisheries have resulted in increased scrutiny of how they are managed. An important but often overlooked factor in the success or failure of tuna fisheries management is the behaviour of fishers and fishing fleets. Uncertainty in how a fishing fleet will respond to management or other influences can be reduced by anticipating fleet behaviour, although to date there has been little research directed at understanding and anticipating the human dimension of tuna fisheries. The aim of this study was to address gaps in knowledge of the behaviour of tuna fleets, using the Indian Ocean tropical tuna purse seine fishery as a case study. We use statistical modelling to examine the factors that influence the spatial behaviour of the purse seine fleet at broad spatiotemporal scales. This analysis reveals very high consistency between years in the use of seasonal fishing grounds by the fleet, as well as a forcing influence of biophysical ocean conditions on the distribution of fishing effort. These findings suggest strong inertia in the spatial behaviour of the fleet, which has important implications for predicting the response of the fleet to natural events or management measures (e.g., spatial closures).     

Marine Reserves: from Beverton and Holt to the Present

The idea of using marine reserves, where all fishing is banned is not new to fisheries management. It was first formally considered by Beverton and Holt but rejected in favour of approaches such as fleet and gear control. Since that analysis, many fisheries have collapsed worldwide, illustrating the vulnerability of fishery resources and the ineffectiveness of these approaches. Empirical data and modelling suggest that marine reserves would generally increase yields, especially at the high fishing mortality that occurs in most fisheries. However, the most interesting feature of reserves is their ability to provide resilience to overexploitation, thereby reducing the risk of stock collapse. Benefits from reserves come from the increase in biomass and individual size within them, resulting in adult migration and/or larval dispersal that would replenish fishing grounds. The use of marine reserves in managing fisheries necessitates a thorough understanding of critical habitat requirements, fish movement, fish behaviour, the relations between subpopulations and the critical density effect for larval dispersal. When properly designed, and coupled with other management practices, reserves may provide a better insurance against uncertainties in stock assessment, fishing control and management by protecting a part of the population from exploitation. This strategy can be used for both sedentary and migratory species.     

Resource Conflicts: Challenges to Fisheries Management at the São Francisco River,Brazil

The paper describes factors influencing artisanal fisheries at the São Francisco River in Brazil as an example of the challenges of managing socially and economically valued common-pool resource systems. A rapid assessment of problems affecting São Francisco River fisheries in 10 communities was carried out in 2003, representing the upper, middle, and lower river portions. Field visits, interviews, focus group discussions and a literature survey allowed us to map socioeconomic and environmental factors important to the fisheries, including conflicts and tensions between stakeholders. Federal, state, and municipal governments, industries, farmers, hydroelectric companies, and urban and rural populations all have a stake in river use. Traditional fishers are the most disadvantaged of these stakeholders. With declining fish populations, most of the fishing communities surveyed are now poor, socially excluded, and with few alternative livelihood options. The stakeholders involved in access and use conflicts are artisanal fishers, professional fishers, sport fishers, farmers, enforcement and regulatory agencies, and hydroelectric companies. Traditional fishers have close ties to the river and its environment and they are usually not invited to contribute to resource management decisions. We recommend changes to management structures involving the fishing communities that are essential to resolve the major conflicts and to improve equity and sustainability of artisanal fisheries.     

The adaptive capacity of fishery management systems for confronting climate change impacts on marine populations

Global climate change will affect the abundance, distribution, and life history timing of many exploited marine populations, but specific changes are difficult to predict. Management systems in which harvest strategies and tactics are flexible in responding to unpredictable biological changes are more likely to succeed in maintaining productive populations. We explore the adaptability of fisheries management systems in relation to oceanic warming rates by asking how two important management characteristics vary with temperature changes for >500 stocks. (1) Harvest control rules, a framework for altering fishing pressure in response to changes in the abundance of targeted species (primarily due to fishing), may provide the capacity for harvest policies to change in response to climate-driven abundance declines also. (2) Seasonal openings with flexible dates that involve in-season monitoring may allow managers to better respond to possible changes in the timing of life-history periods like spawning to prevent fishing seasons falling out of sync with species’ phenology. Harvest control rules were widely used across industrialized fisheries including in regions that experienced relatively high oceanic warming rates, but after controlling for regional factors we found no association between ocean warming and the use of harvest control rules. Flexible-date seasonal openings were rare compared to fixed-date seasonal openings, but tended to occur in areas with the greatest warming rates while fisheries without seasonal closures tended to occur in areas with the least observed temperature changes. We found no consistent evidence of recent ocean warming effects on the current biomass or exploitation rates relative to management targets of 241 assessed marine populations. Together, these results suggest that the oceanic areas expected to have the greatest climate impacts on populations do at least tend to contain fisheries that demonstrate the potential for adaptability to unpredictable climate impacts.     

Management Effectiveness of the World's Marine Fisheries

Ongoing declines in production of the world's fisheries may have serious ecological and socioeconomic consequences. As a result, a number of international efforts have sought to improve management and prevent overexploitation, while helping to maintain biodiversity and a sustainable food supply. Although these initiatives have received broad acceptance, the extent to which corrective measures have been implemented and are effective remains largely unknown. We used a survey approach, validated with empirical data, and enquiries to over 13,000 fisheries experts (of which 1,188 responded) to assess the current effectiveness of fisheries management regimes worldwide; for each of those regimes, we also calculated the probable sustainability of reported catches to determine how management affects fisheries sustainability. Our survey shows that 7% of all coastal states undergo rigorous scientific assessment for the generation of management policies, 1.4% also have a participatory and transparent processes to convert scientific recommendations into policy, and 0.95% also provide for robust mechanisms to ensure the compliance with regulations; none is also free of the effects of excess fishing capacity, subsidies, or access to foreign fishing. A comparison of fisheries management attributes with the sustainability of reported fisheries catches indicated that the conversion of scientific advice into policy, through a participatory and transparent process, is at the core of achieving fisheries sustainability, regardless of other attributes of the fisheries. Our results illustrate the great vulnerability of the world's fisheries and the urgent need to meet well-identified guidelines for sustainable management; they also provide a baseline against which future changes can be quantified.     

Fishing impacts on the marine inorganic carbon cycle

1.  Teleost fish excrete precipitated carbonate and make significant contributions to the marine inorganic carbon cycle at regional and global scales. As total carbonate production is linked to fish size and abundance, fishing is predicted to affect carbonate production by modifying fish abundance and size-structure.
2.  We draw on concepts from physiology, metabolic ecology, life history theory, population dynamics and community ecology to develop, validate and apply analytical tools to assess fishing impacts on carbonate production. Outputs suggest that population and community carbonate production fall rapidly at lower rates of fishing than those used as management targets for sustainable yield.
3.  Theoretical predictions are corroborated by estimated trends in carbonate production by a herring population and a coral reef fish community subject to fishing. Our analytical results build on widely applicable relationships between life history parameters and metabolic rates, and can be generalized to most fished ecosystems.
4.   Synthesis and applications . If the maintenance of chemical processes as well as biological process were adopted as a management objective for fisheries then the methods we have developed can be applied to assess the effects of fishing on carbonate production and to advise on acceptable rates of fishing. Maintenance of this ecosystem service would require lower rates of fishing mortality than those recommended to achieve sustainable yield.