Regional fisheries management organizations and the new biodiversity agreement: Challenge or opportunity?

In 2018, the international community began formal intergovernmental negotiations over a new legally binding instrument for the protection of marine biodiversity of areas beyond national jurisdiction. Protecting marine biodiversity is imperative for a sustainable future, and all the different organizations and agreements will have to work together to achieve this common goal. One of the first key principles to be agreed was to “not undermine” the existing legal instruments or mandates of regional and sectoral marine governance organizations. While fisheries are not being discussed during the negotiations, a marine biodiversity agreement is likely to still impact regional fisheries management organizations (RFMOs), due to overlapping areas of interest. This article aims to firstly, assess the potential constraints posed by the commitment to “not undermine”; secondly, consider how aspects of the biodiversity agreement, such as area‐based management and environmental impact assessments, might enhance RFMOs; and thirdly, suggest meaningful ways to ensure cooperation between RFMOs and the marine biodiversity agreement.     

公海深海底层渔业国际管理进展

以底拖网为代表的深海底层渔业对深海脆弱海洋生态系统的危害受到国际社会的热切关注。2003年以来联合国大会多次通过决议,呼吁各国各自并通过RFMO/As采取行动,根据预防性原则,采用基于生态系统的管理方法,评估深海底层渔业对脆弱海洋生态系统的影响,若评估表明确有重大不利影响,则应采取有效措施限制深海底层渔业以降低这种影响;FAO主要从技术角度制定了《公海深海渔业管理国际指南》,为管理公海深海渔业和保护脆弱海洋生态系统提出了技术标准和管理框架;RFMO承担着具体执行深海底层渔业管理措施和监督管理的责任,在北大西洋、地中海、南太平洋的公海和南极水域,相关RFMO已采取了暂停部分区域底拖网渔业活动、收集数据、评估底拖网对脆弱海洋生态系统的影响等措施,在北太平洋,新成立的北太平洋渔业管理委员会将公海底层渔业管理作为首要目标。环保非政府组织和部分科学家呼吁禁止公海深海底层渔业,但各国对此的立场尚不一致,产业界大多持反对立场。近期来看,尚难以全面禁止公海的深海底层渔业。中国正在发展公海大洋渔业,需对此密切关注,加强跟踪研究以支撑决策,并应发展和使用选择性渔具和对生态环境无害的作业方式,防止对脆弱海洋生态系统产生损害性影响。     

当代海洋捕捞的发展现状和展望

海洋捕捞事关国际粮食安全和海洋生态系统健康。得益于科学技术的进步, 当代海洋捕捞发展迅速, 但依然面临着渔业资源衰退、海洋底栖环境破坏、兼捕与抛弃、废弃渔具引起的幽灵捕捞和塑料污染、气候变化、区域发展不平横等系列问题。本文综述了国内外为缓解上述问题在海洋捕捞管理、技术创新、最佳实践探索等方面的工作进展, 并提出了如下发展建议: (1) 应进一步加强生态友好型渔具渔法、高效节能技术、废弃渔具回收利用技术、生物可降解材料等方面的基础和应用研究; (2) 开展减少兼捕、降低底拖网对底栖环境的影响、海洋捕捞高效节能、减少废弃渔具流向海洋等方面最佳实践的探索; (3) 加强激励机制的研究和应用, 加强对废弃渔具回收产业的政策扶持, 完善海洋捕捞管理体系和废弃渔具管理体系建设, 增强治理能力; (4) 加强国家或地区间渔业合作, 分享管理知识, 促进区域间平衡发展。(5) 加强气候变化应对策略的探索研究。立足长远、多措并举, 促进海洋捕捞可持续发展。     

Characterization of seabird bycatch in eastern Canadian waters, 1998–2011, assessed from onboard fisheries observer data

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Report card on ecosystem‐based fisheries management in tuna regional fisheries management organizations

International instruments of fisheries governance have set the core principles for the management of highly migratory fishes. We evaluated the progress of tuna Regional Fisheries Management Organizations (tRFMOs) in implementing the ecological component of ecosystem‐based fisheries management (EBFM). We first developed a best case tRFMO for EBFM implementation. Second, we developed criteria to evaluate progress in applying EBFM against this best case tRFMO. We assessed progress of the following four ecological components: target species, bycatch species, ecosystem properties and trophic relationships, and habitats. We found that many of the elements necessary for an operational EBFM are already present, yet they have been implemented in an ad hoc way, without a long‐term vision and a formalized plan. Overall, tRFMOs have made considerable progress monitoring the impacts of fisheries on target species, moderate progress for bycatch species, and little progress for ecosystem properties and trophic relationships and habitats. The tRFMOs appear to be halfway towards implementing the ecological component of EBFM, yet it is clear that the “low‐hanging fruit” has been plucked and the more difficult, but surmountable, issues remain, notably the sustainable management of bycatch. All tRFMOs share the same challenge of developing a formal mechanism to better integrate ecosystem science and advice into management decisions. We hope to further discussion across the tRFMOs to inform the development of operational EBFM plans.     

Is it good or bad to fish with FADs? What are the real impacts of the use of drifting FADs on pelagic marine ecosystems?

The use of fish aggregating devices (FADs) by purse seine fisheries has come under increasing criticism for its potential deleterious impacts on tuna stocks, for high levels of by‐catch and threats to the biodiversity of tropical pelagic ecosystems. Here, we review the current state of scientific knowledge of this fishing technique and current management strategies. Our intent is to encourage objective discussion of the topic and highlight areas worthy of future research. We show that catching juvenile tuna around FADs does not necessarily result in overfishing of stocks, although more selective fishing techniques would likely help obtain higher yield. Levels of non‐tuna by‐catch are comparable to or less than in other commercial tuna fisheries and are primarily comprised of species that are not considered threatened. Accordingly, to minimize impacts on ecosystem balance, there is merit in considering that all species captured in purse seine fisheries (excluding vulnerable species such as turtles and sharks) should be retained, but the consequences of such a measure should be carefully examined before implementation. The take of vulnerable species could be further reduced by introduction of additional mitigation measures, but their potential benefits would be limited without parallel efforts with other gears. Finally, there is no unequivocal empirical evidence that FADs represent an ‘ecological trap’ that inherently disrupts tuna biology although further research should focus on this issue. We encourage RFMOs to expand and improve their FAD management plans. Under appropriate management regimes, FAD fishing could be an ecologically and economically sensible fishing method.     

Broadbill swordfish: status of established fisheries and lessons for developing fisheries

Guidelines for the assessment and management of developing swordfish fisheries are derived through an examination of five swordfish fisheries. As they develop, swordfish fisheries may be inclined to local depletion around underwater features, such as seamounts and banks. Few nations have applied the precautionary approach in managing their developing swordfish fisheries. Without controls, swordfish fisheries expand geographically and fishing effort increases, often overshooting optimum levels. However, it is difficult to distinguish clear evidence of fishery collapse; modern longliners harvest widely distributed tuna and swordfish and they are able to relocate to distant areas or switch between target species in response to fluctuations in species abundance and price. Furthermore, the wide distribution of swordfish combined with year‐round spawning and high growth rates amongst juveniles probably contribute to the apparent resilience of swordfish stocks to intensive harvesting. Over half the world’s swordfish catch is taken as an incidental catch of longliners fishing for tuna. In several areas, such as the North Atlantic, catch quotas have sometimes caused tuna longline fishers to discard swordfish. Minimum size limits have also resulted in discarding of swordfish in tuna fisheries and in dedicated swordfish fisheries. In addition to weakening the effectiveness of those management measures, bycatch and discarding add to the complexities of managing swordfish fisheries and to uncertainties in assessing the stocks. Longliners that target swordfish often fish at high latitudes where interactions with marine wildlife, such as seabird, are generally more frequent than at low latitudes. Concern over incidental catches of marine wildlife and other species is becoming a driving force in the management of several swordfish fisheries. Fishery management organisations will need to implement management measures to protect non‐target species and gather reliable data and information on the situation by placing observers on boats fishing for swordfish.     

Empowering high seas governance with satellite vessel tracking data

Between 1950 and 1989, marine fisheries catch in the open‐ocean and deep‐sea beyond 200 nautical miles from shore increased by a factor of more than 10. While high seas catches have since plateaued, fishing effort continues to increase linearly. The combination of increasing effort and illegal, unreported and unregulated (IUU) fishing has led to overfishing of target stocks and declines in biodiversity. To improve management, there have been numerous calls to increase monitoring, control and surveillance (MCS). However, MCS has been unevenly implemented, undermining efforts to sustainably use high seas and straddling stocks and protect associated species and ecosystems. The United Nations General Assembly is currently negotiating a new international treaty for the conservation and sustainable use of biodiversity beyond national jurisdiction (BBNJ). The new treaty offers an excellent opportunity to address discrepancies in how MCS is applied across regional fisheries management organizations (RFMOs). This paper identifies ways that automatic identification system (AIS) data can inform MCS on the high seas and thereby enhance conservation and management of biodiversity beyond national jurisdictions. AIS data can be used to (i) identify gaps in governance to underpin the importance of a holistic scope for the new agreement; (ii) monitor area‐based management tools; and (iii) increase the capacity of countries and RFMOs to manage via the technology transfer. Any new BBNJ treaty should emphasize MCS and the role of electronic monitoring including the use of AIS data, as well as government–industry–civil society partnerships to ensure critically important technology transfer and capacity building.     

Just a FAD? Ecosystem impacts of tuna purse‐seine fishing associated with fish aggregating devices in the western Pacific Warm Pool Province

The western and central Pacific Ocean supports the world's largest tuna fisheries. Since the 1990s, the purse‐seine fishery has increasingly fished in association with fish aggregating devices (FADs), which has increased catches of juvenile bigeye and yellowfin tunas and vulnerable bycatch species (e.g., sharks). This has raised concerns regarding the sustainability of these species’ populations and the supporting ecosystem, but may provide improved food security of Pacific Island nations through utilisation of FAD‐associated byproduct species (e.g., wahoo). An ecosystem model of the western Pacific Warm Pool Province was used to explore the potential ecological impacts of varying FAD fishing effort (±50% or 100%) over 30 years. The ecosystem has undergone a significant change in structure since 1980 from heavy exploitation of top predators (e.g., tunas) and “fishing up the food web” of high‐trophic‐level non‐target species. The ecosystem appeared resistant to simulated fishing perturbations, with only modest changes (<10%) in the biomass of most groups, although some less productive shark bycatch species decreased by up to 43%, which had a subsequent positive effect on several byproduct species, the prey of sharks. Reduction of FAD effort by at least 50% was predicted to increase the biomass of tuna species and sharks and return the ecosystem structure to a pre‐industrial‐fishing state within 10 years. Spatial disaggregation of the model and integration of economic information are recommended to better capture ecological and economic changes that may result from fishing and/or climate impacts and to develop appropriate management measures in response.     

Assessing and managing data‐limited ornamental fisheries in coral reefs

Coral reefs support numerous ornamental fisheries, but there are concerns about stock sustainability due to the volume of animals caught. Such impacts are difficult to quantify and manage because fishery data are often lacking. Here, we suggest a framework that integrates several data‐poor assessment and management methods in order to provide management guidance for fisheries that differ widely in the kinds and amounts of data available. First, a resource manager could assess the status of the ecosystem (using quantitative metrics where data are available and semi‐quantitative risk assessment where they are not) and determine whether overall fishing mortality should be reduced. Next, productivity susceptibility analysis can be used to estimate vulnerability to fishing using basic information on life history and the nature of the fishery. Information on the relative degree of exploitation (e.g. export data or ratios of fish density inside and outside no‐take marine reserves) is then combined with the vulnerability ranks to prioritize species for precautionary management and further analysis. For example, species that are both highly exploited and vulnerable are good candidates for precautionary reductions in allowable capture. Species that appear to be less vulnerable could be managed on a stock‐specific basis to prevent over‐exploitation of some species resulting from the use of aggregate catch limits. The framework could be applied to coral reef ornamental fisheries which typically lack landings, catch‐per‐unit‐effort and age‐size data to generate management guidance to reduce overfishing risk. We illustrate the application of this framework to an ornamental fishery in Indonesia.     

Keeping watch on the unwatchable: technological solutions for the problems generated by ecosystem-based management

Ecosystem‐based management is an emerging paradigm influencing the management of commercial fisheries. Increasingly, developed nations are adopting explicit legislation and policy governing the assessment and management of their fisheries against criteria of ecological sustainability. Yet the ability to evaluate ecosystem impacts of fisheries is compromised by a general lack of understanding of marine ecosystem function (beyond the population level) and a lack of robust and practical indicators for ecosystem health and management. Recent technological advances can assist in developing criteria, including structural analyses of seafloor communities potentially impacted by fishing gears (e.g. demersal trawling). Similarly, advances in fishing gear technology, including improved selectivity and the development of gears which have a more benign environmental impact, can mitigate some of the ecological impacts of fishing. Such technological advances are summarized in the context of contemporary fisheries management.     

Strong fisheries management and governance positively impact ecosystem status

Fisheries have had major negative impacts on marine ecosystems, and effective fisheries management and governance are needed to achieve sustainable fisheries, biodiversity conservation goals and thus good ecosystem status. To date, the IndiSeas programme (Indicators for the Seas) has focussed on assessing the ecological impacts of fishing at the ecosystem scale using ecological indicators. Here, we explore fisheries ‘Management Effectiveness’ and ‘Governance Quality’ and relate this to ecosystem health and status. We developed a dedicated expert survey, focused at the ecosystem level, with a series of questions addressing aspects of management and governance, from an ecosystem‐based perspective, using objective and evidence‐based criteria. The survey was completed by ecosystem experts (managers and scientists) and results analysed using ranking and multivariate methods. Results were further examined for selected ecosystems, using expert knowledge, to explore the overall findings in greater depth. Higher scores for ‘Management Effectiveness’ and ‘Governance Quality’ were significantly and positively related to ecosystems with better ecological status. Key factors that point to success in delivering fisheries and conservation objectives were as follows: the use of reference points for management, frequent review of stock assessments, whether Illegal, Unreported and Unregulated (IUU) catches were being accounted for and addressed, and the inclusion of stakeholders. Additionally, we found that the implementation of a long‐term management plan, including economic and social dimensions of fisheries in exploited ecosystems, was a key factor in successful, sustainable fisheries management. Our results support the thesis that good ecosystem‐based management and governance, sustainable fisheries and healthy ecosystems go together.     

Estimating trends and magnitudes of bycatch in the tuna fisheries of the Western and Central Pacific Ocean

Minimising the unintended capture of fish, marine mammals, reptiles, seabirds and other marine organisms is an important component of responsible fisheries management and for stabilising declines and rebuilding populations of threatened species. The analyses presented were designed to establish the first quantitative baseline of historical catches, catch rates and species composition for the dominant tuna fisheries operating in the western and central Pacific, the world's largest in terms of tuna catch. Using records from 612,148 fishing events collected by independent ‘at sea’ observers, estimates for finfish, billfish, elasmobranchs, marine mammals and sea turtles show that the composition and magnitude of catches varied considerably by fishery type and practice for the period 2003–2019. Simulations indicated that precision in longline estimates would be improved by monitoring a proportion of fishing sets from all fishing trips rather than full coverage from a proportion of all fishing trips. While attributing reasons for temporal trends in estimated bycatch was difficult due to the confounding impacts of changing abundances and fishing practices, the trends identified the nature of potential relationships for species that are not accurately quantified, or not covered, by fishing vessel logbooks. The trends in catch estimates, and the catch rate models, have utility in identifying species which may require targeted additional analyses and management interventions, including species of conservation interest (either due to their threatened status or vulnerability to fishing) such as elasmobranchs and sea turtles. Moreover, the estimates should support future evaluations of the impact of these industrial-scale fisheries on bycatch species.     

Setting the net lower: A potential low-cost mitigation method to reduce cetacean bycatch in drift gillnet fisheries

1. Bycatch is the most significant threat to marine megafauna (sea turtles, marine mammals, elasmobranchs, seabirds) worldwide, and the leading cause of the decline of several cetacean species. The bycatch issue in the Indian Ocean is poorly understood, but high bycatch levels in gillnet fisheries have been documented for the past two decades, in both small-scale and semi-industrial fisheries. Unfortunately, methods to reduce bycatch are often unavailable, financially non-viable or socially unacceptable to fishermen.
2. Using a network of trained boat captains in the tuna drift gillnet fishery in the Arabian Sea, targeted catch and bycatch data were collected from 2013 to 2017 off the coast of Pakistan (northern Indian Ocean). Two fishing methods using multifilament gillnets were used: surface deployment and subsurface deployment (i.e. headline of net set below 2 m depth).
3. Predicted catch rates for targeted species did not differ significantly between the two fishing practices, although a drop in tuna (6.2%) and tuna-like (10.9%) species captures was recorded in subsurface sets. The probability of cetacean bycatch, however, was 78.5% lower in subsurface than in surface sets.
4. Cetacean bycatch in tuna drift gillnet fisheries has the potential to be significantly reduced at a relatively low cost for fishers. However, further research with an appropriate sampling design and a large sample size is required to confirm the efficacy of the proposed mitigation method. The acceptability and adoption of subsurface setting by fishers also needs to be further investigated. Despite some limitations, this preliminary study also highlights the importance of crew-based observer data as an alternative source of data when observers cannot be deployed on fishing vessels.

     

Expanding the concept of sustainable seafood using Life Cycle Assessment

Fisheries management and sustainability assessment of fisheries more generally have recently expanded their scope from single‐species stock assessment to ecosystem‐based approaches, aiming to incorporate economic, social and local environmental impacts, while still excluding global‐scale environmental impacts. In parallel, Life Cycle Assessment (LCA) has emerged as a widely used and recommended framework to assess environmental impacts of products, including global‐scale impacts. For over a decade, LCA has been applied to seafood supply chains, leading to new insights into the environmental impact of seafood products. We present insights from seafood LCA research with particular focus on evaluating fisheries management, which strongly influences the environmental impact of seafood products. Further, we suggest tangible ways in which LCA could be taken up in management. By identifying trade‐offs, LCA can be a useful decision support tool and avoids problem shifting from one concern (or activity) to another. The integrated, product‐based and quantitative perspective brought by LCA could complement existing tools. One example is to follow up fuel use of fishing, as the production and combustion of fuel used dominates overall results for various types of environmental impacts of seafood products, and is also often linked to biological impacts of fishing. Reducing the fuel use of fisheries is therefore effective to reduce overall impacts. Allocating fishing rights based on environmental performance could likewise facilitate the transition to low‐impact fisheries. Taking these steps in an open dialogue between fishers, managers, industry, NGOs and consumers would enable more targeted progress towards sustainable fisheries.     

An integrated scheme for the management of drifting fish aggregating devices in tuna purse seine fisheries

Drifting fish aggregating devices (dFADs) are extensively used in modern tuna purse seine fisheries. The use of dFADs has greatly improved fishing efficiency and generated substantial economic returns in purse seine fisheries, but adverse impacts on tuna juveniles, associated species and marine ecosystems are still of concern. Based on an analysis of current challenges in dFAD management measures in tuna regional fishery management organisations (t-RFMOs), we explored opportunities to strengthen dFAD management in tuna fisheries. An integrated dFAD management scheme with multiple tools that account for different usage stages of a dFAD needs to be organised to regulate, track, monitor and recover in tuna purse seine fisheries. We recommend that (1) dFAD-associated definitions should be standardised to provide operational guidance for dFAD activities; (2) all deployed dFADs should be counted towards dFAD limits on active dFADs, except those reported as lost and abandoned; (3) a regional dFAD tracking and monitoring program should track dFAD paths based on daily position reported to RFMOs directly, in addition to mandatory dFAD marking requirements; and (4) a framework of compensation mechanisms should provide financial support for joint dFAD recovery and eco-compensation.     

Are bycatch rates sufficient as the principal fishery performance measure and method of assessment for seabirds?

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167 individuals versus millions of hooks: bycatch mitigation in longline fisheries underlies conservation of Amsterdam albatrosses

1. Industrial fisheries represent one of the most serious threats worldwide to seabird conservation. Death of birds in fishing operations (i.e. bycatch) has especially adverse effects on populations of albatrosses, which have extremely low fecundity. 2. The single population worldwide of Amsterdam albatross (Diomedea amsterdamensis) comprises only 167 individuals and risks considerable decline over the mid‐term from additional mortality levels potentially induced by fisheries. The priority actions listed in the current conservation plan for this species included characterizing the longline fisheries operating within its range, dynamically analysing the overlap between albatrosses and these fisheries, and providing fisheries management authorities with potential impact estimates of longline fisheries on the Amsterdam albatross. 3. During all life‐cycle stages and year quarters the birds overlapped extensively with fishing effort in the southern Indian and Atlantic oceans. Fishing effort, and consequently overlap score (calculated as the product of fishing effort and time spent by the birds in a spatial unit) was highest in July–September (45% of the hooks annually deployed). Just three fleets (Taiwanese, Japanese and Spanish) contributed to >98% of the overlap scores for each stage (72% from the Taiwanese fleet alone, on average). Daily overlap scores were higher for the non‐breeding versus the breeding stages (3‐fold factor on average). 4. Based on previous bycatch rates for other albatross species, this study estimated that longline fisheries currently have the potential to remove ~2–16 individuals (i.e. ~5%) each year from the total Amsterdam albatross population, depending on whether bycatch mitigation measures were or were not systematically employed during the fishing operations. 5. Recent bycatch mitigation measures may be instrumental in the conservation of the Amsterdam albatross. This study suggests three further key recommendations: (1) to focus conservation efforts on the austral winter; (2) to require all operating vessels to report ring recoveries; and (3) to allocate special regulation of fishing operations in the areas of peak bycatch risk for the Amsterdam albatrosses. Copyright © 2015 John Wiley & Sons, Ltd.     

Use of remote sensing tools to predict focal areas for sea turtle conservation in the south-western Atlantic

1. Fisheries bycatch of non-target species in the commercial fleet is a major source of anthropogenic injury and mortality for sea turtles and marine megafauna.
2. The Río de la Plata maritime front (RLPMF) and its adjacent international waters – comprising part of the Argentine and Uruguayan exclusive economic zones, is a highly important fishing ground in the south-western Atlantic Ocean as well as feeding and development grounds for sea turtles.
3. This paper analyses the distribution of the bottom and pelagic trawling fishery within the RLPMF using information from Vessel Satellite Monitoring System. With this information, areas of highest trawling intensity were defined and further evaluated their overlap with sea turtle habitat-use areas from available sea turtle satellite tracking information.
4. Results besides identifying high-susceptibility areas for sea turtle bycatch by the commercial trawler fleet along the RLPMF, provide predictive tools to identify vulnerable areas to interaction of sea turtles and the commercial fishing fleet.
5. Implementation of bycatch mitigation measures, such as reduced fishing effort areas by the Argentine and Uruguayan fisheries management agencies has the potential to benefit the fisheries as well as marine megafauna. Furthermore, there is a need for additional research on the impact that this fleet can have on sea turtles present in the area.

     

Common but differentiated rights and responsibilities in tuna fisheries management

The UN Law of the Sea Convention (LOSC) and one of the implementing agreements of the Convention—the UN Fish Stocks Agreement (UNFSA)—mandates all states to cooperate in the management of highly migratory and straddling fish stocks. In doing so, the UNFSA specifies that the special requirements of developing states need to be taken into account. To date, except in the Western and Central Pacific Fisheries Commission (WCPFC), there is no formal mechanism to identify these differential responsibilities in tuna regional fisheries management organizations (RFMOs). Although some conservation and management measures exempt small-scale and artisanal fishing vessels, power imbalances within RFMOs tend to favour the interests of more developed and larger distant water fishing nations over those of small developing coastal states. To facilitate the implementation of differentiated responsibilities as mandated in UNFSA, in this study we develop a three-step framework that could be applied in the case of new conservation and management measure proposals. The framework has also been tested based on two developing countries and compared with a developed state in the Indian Ocean Tuna Commission and the adopted resolutions in 2019. To facilitate better transparency and equitable decision-making processes across RFMOs, this framework could be adapted based on member states' fisheries management objectives and target and non-target species.