Wasted Resources: Bycatch and discards in U. S. Fisheries by J. M. Harrington, MRAG Americas, Inc. R. A. Myers, Dalhousie University A. A. Rosenberg, University of New Hampshire Prepared by MRAG Americas, Inc. For Oceana July 2005 TABLE OF CONTENTS ACKNOWLEDGEMENTS 7 NATIONAL OVERVIEW 9 Introduction 9 Methodology 11 Discarded Bycatch Estimates for the 27 Major Fisheries in the U.S. 12 Recommendations 17 Definitions of Key Terms Used in the Report 19 Acronyms and Abbreviations Used in the Report 20 NORTHEAST 25 Northeast Groundfish Fishery 27 Target landings 28 Regulations 30 Discards 32 Squid, Mackerel and Butterfish Fishery 41 Target landings 42 Regulations 44 Discards 44 Monkfish Fishery 53 Target landings 53 Regulations 54 Discards 55 Summer Flounder, Scup, and Black Sea Bass Fishery 59 Target landings 59 Regulations 60 Discards 61 Spiny Dogfish Fishery 69 Target landings 69 Regulations 70 Discards 70 Atlantic Surf Clam and Ocean Quahog Fishery 75 Target landings 75 Regulations 76 Discards 76 Atlantic Sea Scallop Fishery 79 Target landings 79 Regulations 80 Discards 81 Atlantic Sea Herring Fishery 85 Target landings 85 Regulations 86 Discards 87 Northern Golden Tilefish Fishery 93 Target landings 93 Regulations 94 Discards 94 Atlantic Bluefish Fishery 97 Target landings 97 Regulations 98 Discards 98 Deep Sea Red Crab Fishery 101 Target landings 101 Regulations 101 Discards 102 SOUTHEAST 103 Shrimp Fishery of the South Atlantic 105 Target landings 105 Regulations 106 Discards 107 Snapper and Grouper of the South Atlantic 111 Target landings 112 Regulations 114 Discards 115 Dolphinfish and Wahoo Fishery of the South Atlantic 121 Target landings 121 Regulations 122 Discards 123 Shrimp Fishery of the Gulf of Mexico 127 Target landings 127 Regulations 128 Discards 128 Reef Fish Resources of the Gulf of Mexico 133 Target landings 133 Regulations 136 Discards 137 Coastal Migratory Pelagics of the Gulf of Mexico and South Atlantic 145 Target landings 145 Regulations 148 Discards 149 Red Drum Fishery of the South Atlantic and Gulf of Mexico 155 Target catch data 155 Regulations 156 Discards 156 Atlantic and Gulf of Mexico Menhaden Fisheries 159 Target landings 159 Regulations 160 Discards 160 WEST COAST 165 Pacific Coast Groundfish Fishery 167 Target landings 168 Regulations 173 Discards 174 Pacific Halibut Fishery 181 Target landings 181 Regulations 182 July 2005 U.S. Fisheries Atlas of Bycatch Page 4 Discards 184 West Coast Salmon Fishery 189 Target landings 190 Regulations 192 Discards 193 Coastal Pelagic Species of the Pacific 197 Target landings 197 Regulations 199 Discards 199 ALASKA 207 Alaskan Salmon Fishery 209 Target landings 209 Regulations 211 Discards 212 Bering Sea and Aleutian Islands King and Tanner Crab Fishery 217 Target landings 217 Regulations 220 Discards 221 Alaskan Weathervane Scallop Fishery 227 Target landings 227 Regulations 228 Discards 229 Gulf of Alaska Groundfish Fishery 233 Target landings 233 Regulations 234 Discards 235 Bering Sea and Aleutian Islands Groundfish Fishery 243 Target landings 243 Regulations 244 Discards 245 WESTERN PACIFIC 253 Bottomfish and Seamount Groundfish of the Western Pacific 255 Target landings 256 Regulations 257 Discards 258 Western Pacific Pelagics Fishery 263 Target landings 263 Regulations 266 Discards 267 HIGHLY MIGRATORY SPECIES FISHERIES 273 Atlantic Highly Migratory Species Fisheries: Atlantic Tunas, Swordfish and Sharks 275 Target landings 276 Regulations 279 Discards 280 July 2005 U.S. Fisheries Atlas of Bycatch Page 5 Acknowledgements The authors would like to acknowledge the following people for their contributions to this project: Erin Collings, Eric Blankfield, John Hoenig, Felicia Coleman, Mike Hirshfield, Ingrid Nugent, Maggie Mooney- Seus, Scott Sherrill-Mix, Beth Weiland and Joseph Beland. Without their efforts, the completion of this report would not have been possible. In addition, the following people supplied us with invaluable advice and expertise in their fields of study: Dvora Hart, Frank Steimle, Anne Richards, Stu Kennedy, Richard Leard, Gregg Williams, Kelly van Wormer, Aaron Ranta, Paul Nitschke, James Nance, Kim Iverson, Gina Shield, Matthew Cieri, David Gloeckner, Steve Correia, Doug Harper, Elizabeth Scott-Denton, Kevin McCarthy, Gregor Cailliet, Heather Gillroy, Martin Loefflad, Samuel Pooley, Leanne Laughlin, Valerie Taylor, Dale Sweetnam, Tom Kohler, Diana Stram, Bill Clark, Mary Yoklavich, Ryan Burt, and Vanessa Tuttle. July 2005 U.S. Fisheries Atlas of Bycatch Page 7 National Overview An Overview of Fishery Discards in the United States Introduction The unintentional capture of non-target species of fish, mammals, turtles and birds, and invertebrates is a well-recognized feature of fisheries around the world. Usually termed bycatch, some of the captured organisms may be retained for sale or use, while others are discarded back into the sea due to either low value or regulatory requirements. Survival rates for discarded bycatch is highly variable (Chopin and Arimoto, 1995; reviewed in Alverson et al. 1994; Davis, 2002), as are the impacts of bycatch on marine ecosystems (Hall et al. 2000) but it is widely accepted that the ecological impacts of bycatch are substantial (FAO, 2004a). Bycatch, and particularly discarded bycatch, is a serious conservation problem because valuable living resources are wasted, populations of endangered and rare species are threatened, stocks that are already heavily exploited are further impacted, and important changes at an ecosystem level such as the overall structure of trophic webs and habitats may result (Morgan and Chuenpagdee, 2003; Alverson and Hughs, 1996; Crowder and Murawski, 1998). Reviewing the status of the stocks included in this report reveals that 25% of stocks are overfished, meaning that their biomass is below a threshold level to maintain a stable population, and 15% of stocks are being fished at a rate above a threshold level, defining overfishing (Figure 1) (NMFS, 2004d). The threshold levels are set individually for each stock by the National Marine Fisheries Service and regional fishery management councils. U.S. Fisheries Stock Status 150 128 131 100 72 61 35 43 50 0 Number Number of stocks Overfishing? Overfished? Stock status Yes No Unknown/Undefined Figure 1: Stock status for 235 federally managed stocks in the United States (NMFS, 2004d). Discarding also results in substantial waste of potential food resources. As global marine fisheries catches have plateaued (FAO, 2004a) and competition for increasingly depleted stocks has intensified, the moral and economic arguments to decrease bycatch have been received greater emphasis from policy makers, industry, and the general public (Pitcher and Chuenpagdee, 1994; Alverson and Hughs, 1996; FAO, 2004b; UN, 2005). Internationally and nationally, the conservation problems associated with bycatch have been well recognized in the scientific community (Alverson et al. 1994; Alverson and Hughs,1996; Hall, 1996;Crowder and Murawski, 1998; ICES, 2005; FAO, 2004a) as well as in policy instruments (UN 1995; NOAA Fisheries, 1996; NMFS, 2004b,c). The U.N. Food and Agriculture Organization Code of Conduct for Responsible Fisheries (FAO, 1995) states that, as a general principle, “States and users of aquatic ecosystems should minimize waste, catch of non-target species, both fish and non-fish species, and July 2005 U.S. Fisheries Atlas of Bycatch Page 9 impacts on associated or dependent species” (FAO, 1995). While the Code of Conduct is voluntary, this same principle is carried forward in international treaties such as the U.N. Treaty on Straddling Fish Stocks and Highly Migratory Fish Stocks (UN, 1995). Domestically, the U.S. Magnuson-Stevens Fisheries Conservation and Management Act of 1996 has, as one of the national standards for management of marine fisheries, the requirement that, “Conservation and management measures shall, to the extent practicable, (A) minimize bycatch and (B) to the extent bycatch cannot be avoided, minimize the mortality of such bycatch” (NOAA Fisheries, 1996). In response to these requirements, there has been a substantial effort to reduce bycatch internationally and domestically (NMFS, 2004b). A recent draft report from FAO indicated that discards of marine species may be as low as 8% of the total global fisheries catch, although it is important to realize that an additional, and perhaps much larger, amount of non-target species may be caught and landed that are not included in this estimate (FAO, 2004a). Within the United States, authorities have required implementation of various measures to reduce bycatch. In general, there are three possible means of bycatch reduction: modifying fishing methods including gear, timing or location of fishing or other aspects of the methodology, such as the introduction of bycatch reduction devices in shrimp fisheries in New England, the South Atlantic Bight and the Gulf of Mexico (Nance et al. 1997; Epperly et al. 2002; Morgan and Chuenpagdee, 2003); changing fishing gear or fishing methods entirely, such the change from drift gill net fishing to trolling for tunas or changing from trawls to traps for groundfish such as lingcod (Morgan and Chuenpagdee, 2003); and reducing fishing effort and therefore the amount of fishing gear in use overall, as has occurred in the New England and Alaska groundfish fisheries. Any one of these methods alone does not necessarily guarantee the reduction of bycatch, but one or more must be a component of any conservation program to reduce the loss of