Calif. JIw. Res. Comna., CalCOFI Rept., 13 : 91-94, 1969

VIEWS CONCERNING USE OF THE LIVING RESOURCES OF THE CALIFORNIA CURRENT

GERALD V. HOWARD, Regional Director Pacific Southwest Region Bureau of Commercial Fisheries Terminal Island, California

I have been asked to express the views of the Bu- ‘wetfish ’ ’ fisheries which harvest mackerels, anchovies reau of Commercial Fisheries concerning the legal, and bonito ; and the “ bottomfish ” fisheries which har- economic, sociological and technological problems im- rest, though not exclusiuely, species taken by trawl- peding the best use of the living resources of the ing. California Current and how they can be resolved. Californians generally do not think of the tropical The impediments are generally rather well knowii. It tunas as a resource of the California Current, prob- is their resolution which presents the challenge. ably because they occur in its southern extension off A rnajor objective of the programs of the Bureau Baja California and rarely in commercial quantities of Commercial Fisheries is to seek the resolution of off southern California. I have included them not only problems which handicap the economic well-being of because they support California’s most important the domestic fishing industry and hinder the best use fishery, but because the long-range tuna fleet’s experi- of the fishery resources. Success of Bureau research ence in overcoming economic difficulties has been more and service programs, however, depends on close col- successful than that of other elements of the Cali- laboration and cooperation with other parties, espe- fornia fishing fleet. I especially wish to mention cially State agencics. things that the tropical fleet has done to place itself Pertinent to the present discussion is that regula- in the more enviable situation. tion of fishing in the United States, aside from that A major factor preventinq the rational use, in- done under treaty with other nations, is done under cluding expansion of V.R. fisheries. lics in repula- State laws rather than Federal statutes. As a result, tions existing at the State level. Tabulations exist in the States have major influence or control over the various recent publications which indicate that Cali- development and utilization of the nation’s fishery fornia has a share of prohibitions against efficient resources. Bureau influence is largely advisory and. fishing and better utilization of the resources avail- depending on the policy of the States, its role is ac- able to the several users. This group is well aware of tive or passive in the development and rational utiliza- the restrictions on the kinds of commodities into tion of the aquatic living resources. which fish may be manufactured. You are well ac- To a considerable degree, varying with the situa- quainted with the restrictive quota? applied to the tion, State and Federal fishery programs are both anchovy fishery with rcspect to the total quota and complementary and interdependent. It is common, for the geographical quotas. You also know that there example, for the Bureau to provide research infor- are prohibitions against certajn gcars and the cap- mation of vital importance to a State and for State ture of certain species for commercial use. policy and regulations to affect sharply the degree to The objective of too many regulations, unfortu- which Bureau goals can be attained. The interde- nately, has not been to maintain the fish populations pendence of State and Bureau programs means that at levels which permit maximum sustainable yield team work is essential and that a vigorous State and to assist in their efficient and equitable harvest. agency is important to the Bureau and vice versa. Rather, the origin has been sociological and has re- sulted too often from conflicts between and among IDENTIFICATION OF THE PROBLEMS users of the resources-conflicts between sport and commercial fishermen, among sportsmen and among The title of the present session of this symposium commercial fishermen. Regulations which have that categorizes the problems which arc jmpeding the best basis permit neither maximum use of our fishery re- use of the living resources of the California Cur- sources nor their efficient harvest, and they inevitably rent as legal, economic, sociological and technological. discriminate against some users. I will treat the legal and sociological problems as In that connection. it is encouraging that a number one category and the economic and technological prob- of recommendations hare been made recently for a lems similarly. In each instance the pair is so closely policy for the management of the marine fishery re- related. sources which, if adopted, should go far to remove It is also convenient to categorize the principal legal and sociological barriers which impede the best fisheries which operate in the Calfironia Current be- use of California’s living resources of the sea. The cause they have quite different characteristics and rccomnicndations which are similar. anpear in Coli- problems. I would identify three, the ‘(tuna” fish- forrzia onnd Use of thc Occcxn (University of Califor- eries which take the tropical and temperate tunas ; the nia, Institute of Marine Resources, IlMR Reference 92 CALIFORSIA COOPERATIrE OCEANIC FISHERIES IKVESTIGATIONS 65-21, October 1965) and California Fish and Wild- Beyond the application of technological advances life Plan (California Office of State Printing, Volume and the need for capital, marketing of the catch is 1, Summary January 1966) and Proceedings of the yet another problem in some fisheries of the California Goverfior ’s Advisory Commission on Ocean Re- Current. There appears to be a need for vigorous mar- sources. References f or the recommendation made by keting programs to expand the market available to the GACOR are provided in Compilation of Recommen- bottomfish producers, especially in northern Califor- dations of the Governor’s Advisory Commission on nia where vessels are on limits and unable to fish full- Ocean Resources (December 20, 1966, State Office of time. It would seem that well directed activity in this Planning, Department of Finance). Although the area might recover specialized markets now held by separate recommendations differ slightly, essentially foreign products. they urge that the marine resources be managed to Comparison of events in the tuna fisheries with attain the optimum sustainable yield while encourag- those in the wetfish fisheries and the bottomfish fish- ing efficient harvest. They recommend that where eries over the past decade attest to the contribution of recreational interests are involved, priority should technological advances and investment capital. The be given to reasonable and legitimate demands of comparison is not entirely fair, however. Tuna is a recreation and that the commercial fishery should be high-priced fish; domestic demand for the catch exists; encouraged to use any harvestable surplus. Imple- conflict among harvesters is minimum ; and regula- mentation of that policy would be appropriate for tions are either not needed or based solely on the prin- the situation in California. It would go far to elimi- ciple of maximum sustainable yield. Recovery of the nate conflicts among users of the resources and tuna fishery from near disaster in the late 1950’s thereby automatically contribute to the efficiency of caused by foreign competition is well known. Improve- commercial fishing. ment in their situation resulted from the introduction Implementation of a management policy like that of the purse seine power block which permitted con- described would make it much easier to tackle the version from bait fishing to seining and also the intro- major economic problem which has long confronted duction of new vessels of advanced design. Today, California fishermen-the competition from imported this fishery probably is in the best economic condi- fishery products from other states and foreign coun- tion of any large group of fishermen in the United tries. At least 50 percent of the fresh and frozen States. fish and perhaps 80 percent of the fish meal utilized I should say the observations about the economic in California are imported. Whereas present require- condition of the tropical tuna fishery are not meant ments for these products exceed the landings, local to imply that tuna fishermen are without problems. catches are delivered in a manner and at prices as to They have many but, so far, the majority has dem- limit their sale. The fact that California fishermen onstrated the ability to adjust to changing conditions must pay higher prices for vessels, gear, salaries, and to make a profit. boat repairs and insurance is largely responsible for Except for the tuna fisheries, California fishermen their higher production costs. generally have been free of international problems Much more attention must be given, now and in the which inevitably occur when more than one nation future, to means of lowering the cost of catching harvests the same resource. I will not get into the fish and improving the quality of the landings if international problems of the tropical tuna fisheries California fishermen are to compete successfully and but will mention that foreign harvesting of resources to increase their share of markets in California and off California has begun. The degree of future im- elsewhere. The key to accomplishment in this area is pingement by other nations will depend to a large the application of technological advances. An array of extent on whether California is adequately harvesting technological improvements are required. Among them its resources. If it does and can prove it, foreign im- are improvements to existing vessels and gear, new pingements can be controlled. Success here depends types of vessels and gear, improved practices of han- on the State’s ability, together with the Federal Gov- dling and holding of fish at sea, improved process- ernment through the Bureau, to establish a defensible ing techniques and new products. The application of position regarding the optimum harvest of the living ocean research results to improve fishing strategy also resources occurring off its shores. has its place. The introduction of improved technology in the SOLUTION OF THE PROBLEMS fishing industry obviously requires money. Except for the tuna fisheries, investment capital has not been The fundamental step towards resolving the prob- attracted to our fisheries for many pears and fisher- lems impeding the best use of the living resources of men generally have had difficulty obtaining loans to the California Current is adoption and implementa- outfit. repnir and replace their vessels. The situation tion of a management policy like that previously cited. described has been particularly critical for the wet- I refer to the management of the resources to obtain fish fleet based in San Pedro. The plight of the wetfish the maximum sustainable yield, with appropriate con- fishermen stems from the competition from imports sideration to the interests of both commercial and but it is compounded by the small quota of anchovies sport fishermen in harvesting the resource. for reduction purposes. Were the quota higher, vol- It is clear to those of us in the Bureau, in the Cali- ume of production conceivably would reduce unit pro- fornia Department of Fish and Game and the Scripps dirction costs. Institution of Oceanography who have been engaged REPORTS VOLUME XIII, 1 JULY 1967 TO 30 JUNE 196s 93 jointly in CalCOFI that the necessary scientific infor- Besides the contributions which biological and mation is available for the State to manage the major oceanographic research and services can make towards resources in accordance with the policy described. Un- the rational and efficient harvest of the living re- fortunately, this situation does not appear to be gen- sources of the California Current, the Bureau looks to erally well known to those outside this circle. important contributions which can be made from re- Since the capability to carry on a more enlight- search in technology, marketing programs and gear ened system of management of the resources does exist research. and the impediment to its adoption perhaps may lie Whereas government, both State and Federal, as in conflicts among users, more effort needs to be spent well as the academic institutions, must assume the preparing and disseminating popular material on the leadership for and the conduct of the biological and results of the scientific research which has been accom- oceanographic work, the fishing industry should do plished. It is important to remind ourselves that con- an appropriate share of the work in marketing and flicts often arise not only due to lack of scientific facts technology. It is not entirely clear to me just who but also due to the lack of presentation of known facts should assume the major responsibility for the gear in an intelligible fashion. Certainly more effort is research. I think that I favor the idea of researchers needed in extension activities of various kinds, and developing the understanding of how the biological it is required on a continuing basis. characteristics of various species of commercial fish If a better job were done informing the public of may affect their reaction to fishing gear of conven- research and managenient results, many of the con- tional and unconventional types. Such work can sug- flicts we have grown accustomed to would not arise. gest or even demonstrate how fishing gear can be made It is safe to say that if the facts about our resources more efficient. Application or adoption of the findings were better known squabbles between sportsmen and would be up to industry. commercial fishermen and within each group, would Unfortunately, too little attention is given to prob- subside to the point that fishermen might realize that lems of handling of the catch at sea, its processing they have more in common than they have to quarrel ashore, and its marketing and distribution to the con- about. They would find that fluctuations in the re- sumer. Industries depending on the resources of the sources are caused by such things as competition California Current would become more competitive among the species and changes in the environment as if they could improve present methods in these areas, well as by man and that it is possible to control the develop new products, reduce labor costs and recog- man’s activities in a rational manner. nize the markets of convenience. The fishing industry, Besides maintaining fishery populations at levels if it is to compete with agricultural products and which permit maximum sustainable harvest, regula- foreign fishery imports must be imaginative, creative tions should be designed to encourage fishing effi- and watch for the application of new developments. ciency. Harvesting efficiency is the key to successful It spends too little for research and most of it is in competition with foreign fishermen because of our the field of quality control rather than the other higher living standard. Historically, regulatory prac- areas mentioned. tices have often outlawed newly developed and more Solution to the problem of giving more attention efficient gear or vessels in favor of old established to technology and marketing in California’s fishing units. Harvesting efficiency cannot be promoted if industries is difficult because, other than in the tuna fishermen cannot take advantage of technological ad- industry, the plants are generally small and inde- vances. pendently operated. Similarly, most vessels are inde- Aside from providing the basis for the rational use of pendently operated rather than fleet controlled. the living resources, there are other important ways in Separately, small independent operators cannot con- which information resulting from fishery research or tribute effectively to technological research and mar- fishery oceanography can assist harvesting efficiency. ket promotion. It appears that somehow means must The few areas which I will mention fall within the be taken to make it possible for industry to pool its capabilities of the Bureau ’s Fishery-Oceanography resources and efforts. Center at La Jolla and its Ocean Research Labora- Our Bureau, of course, has a small technological tory, Stanford. Research underway at these labora- laboratory at Terminal Island and we also have a tories as it progresses will provide the fisherman with small marketing program. Our resources are not, nor information which he can use to improve his tactical likely to be, equal to the entire effort required in scouting and catching operations. Already considera- technology and marketing. Even if they were, I doubt ble progress has been made in forecasting space and that we are in a position or have the capability to time variations in the distribution and abundance of judge best industry’s requirements in all matters. 1 albacore along the west coast. Also, radio advisories believe that we should continue to undertake special are provided to albacore fishermen as well as sea sur- projects in these areas, to coordinate activities where face temperature charts which are used in their fishing appropriate and to assist in other ways according to operations. There is no reason why similar informa- need. tion and services cannot be developed for other fisher- ies in the California Current as we increase our under- As mentioned earlier, money is a key requirement standing about the resources, provided the funding if the California fishing fleet is continually going to situation is favorable. adopt advanced technology in its methods of opera- 94 CAIJIFORXIA COOPEIlATIBE OCEANIC FIRIIERIES INVESTIGATIOR’S tion as such becomes available. At the present time, able opportunity for California fishermen to compete fishermen generally have difficulty obtaining loans to for the market in the State and elsewhere. finance the cost of constructing, maintaining and Creation of a better climate requires the joint effort equipping their vessels. Banks and other lending of the State and Federal Governments and the fishing agencies are reluctant to loan money for these pur- industry and it requires public support. It is incum- poses. While the Bureau has financial assistance pro- bent on all parties to work to this end. If we do not grams which are helpful, they are not adequate to utilize the living resources off our shores for our handle all the fishery loan requirements. The availa- benefit, other nations will. If there is doubt about bility of money for loans to fishermen does not seem that, we need only remind ourselves that the prelude likely to improve until a more favorable climate ex- to large scale fishing on the part of other nations is ists, one which encourages fishing and offers reason- now occurring off our shores.