2021 Report to Congress on Improving International Fisheries
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Improving International Fisheries Management 2021 Report to Congress NOAA FISHERIES REPORT TO CONGRESS IMPROVING INTERNATIONAL FISHERIES MANAGEMENT August 2021 Developed pursuant to the High Seas Driftnet Fishing Moratorium Protection Act Janet Coit Assistant Administrator for Fisheries National Marine Fisheries Service National Oceanic and Atmospheric Administration Dr. Richard W. Spinrad Under Secretary of Commerce for Oceans and Atmosphere and NOAA Administrator Table of Contents I. Executive Summary ............................................................................................................................................ 2 List of Acronyms ................................................................................................................................................. 4 II. Introduction ......................................................................................................................................................... 6 III. Background ......................................................................................................................................................... 8 A. Process for Identification and Certification ......................................................................................................... 8 B. Illegal, Unreported, and Unregulated Fishing ...................................................................................................... 8 C. Bycatch of Protected Living Marine Resources .................................................................................................. 9 D. Shark Conservation and Protection ................................................................................................................... 10 IV. IUU Fishing Certifications ............................................................................................................................... 12 A. Ecuador: Positive Certification .......................................................................................................................... 12 B. Mexico: Negative Certification ......................................................................................................................... 15 C. Republic of Korea: Positive Certification .......................................................................................................... 18 V. Identifications .................................................................................................................................................... 21 A. Illegal, Unreported, and Unregulated Fishing ................................................................................................... 21 1. China .......................................................................................................................................................... 22 2. Costa Rica .................................................................................................................................................. 23 3. Guyana ....................................................................................................................................................... 24 4. Mexico ....................................................................................................................................................... 25 5. Russian Federation ..................................................................................................................................... 27 6. Senegal ....................................................................................................................................................... 28 7. Taiwan ........................................................................................................................................................ 30 B. Bycatch of Protected Living Marine Resources ............................................................................................. 31 1. Mexico ....................................................................................................................................................... 33 2. Other Nations and Entities Identified for Bycatch of PLMRs .................................................................... 34 3. Next Steps .................................................................................................................................................. 36 C. Shark Catch on the High Seas ........................................................................................................................... 37 VI. NOAA’s International Activities ..................................................................................................................... 40 A. Overview of Multilateral and Bilateral Engagement ...................................................................................... 40 B. Accomplishments and Efforts of Global and Regional Organizations ........................................................... 41 C. Accomplishments and Efforts of RFMOs ...................................................................................................... 46 VII. Other Initiatives and Issues .............................................................................................................................. 53 A. Maritime SAFE Act ........................................................................................................................................ 53 B. Seafood Import Monitoring Program ............................................................................................................. 54 C. MMPA Import Rule ....................................................................................................................................... 57 D. Capacity Building and Research Efforts to Reduce Bycatch of PLMRs ........................................................ 58 E. Enforcement Training Assistance ................................................................................................................... 59 F. Monitoring and Control of Transshipment ..................................................................................................... 60 G. RFMO Reporting Concerns ............................................................................................................................ 61 H. Forced Labor .................................................................................................................................................. 61 Appendix 1: International Fisheries and Related Agreements and Organizations ............................................ 64 Appendix 2: U.S. Laws Relevant to IUU Fishing, PLMR Bycatch, and Shark Conservation ........................... 70 Appendix 3: Issues of Concern Not Forming the Basis of an IUU Fishing Identification .................................. 72 1 I. Executive Summary Under the High Seas Driftnet Fishing Moratorium Protection Act (Moratorium Protection Act) (16 U.S.C. §§ 1826h-1826k), Congress requires the Secretary of Commerce to submit a biennial report identifying nations or entities whose vessels have been engaged in illegal, unreported, and unregulated (IUU) fishing, bycatch of protected species, unsustainable fishing for sharks on the high seas, or whose own actions or failures undermine conservation measures of a regional fishery management organization (RFMO). After consulting with identified nations and entities on improving their relevant fisheries management and enforcement practices, the Secretary must certify in the next biennial report whether actions by the identified nations and entities have adequately addressed the activities of concern. In its 2019 Biennial Report to Congress, the National Marine Fisheries Service (NMFS) identified Ecuador for failing to comply with enforcement requirements of an RFMO, Mexico for having vessels fishing illegally in U.S. waters, and the Republic of Korea for failing to apply sufficient sanctions to deter its vessels from violating measures adopted by an RFMO. As required by the Moratorium Protection Act, Chapter IV of this report contains NMFS’ certification determinations for those nations. Ecuador and the Republic of Korea receive positive certifications on the basis of their corrective actions to address the activities for which they were identified in 2019. Mexico receives a negative certification because it did not take effective corrective action to address the increasing number of incursions and of repeat offenders. In Chapter V of this report, NMFS identifies seven nations and entities for activities related to IUU fishing: China, Costa Rica, Guyana, Mexico, the Russian Federation, Senegal, and Taiwan. Reasons for these identifications include illegal fishing in U.S. waters, fishing in violation of RFMO measures (including several shark conservation measures), failure to investigate violations or take appropriate corrective actions, and failure to provide required data to an RFMO. Another basis for identification is bycatch of protected living marine resources (PLMRs). NMFS identifies Mexico for bycatch of a PLMR (North Pacific loggerhead sea turtles) shared with the United States, and for failure to adopt management measures comparable to those of the United States. Based on the criteria in 16 U.S.C. § 1826k and a number of practical considerations, for this report NMFS prioritized the examination of bycatch of sea turtles in longline tuna and tuna- like fisheries