MSCPre-AssessmentUpdate ForWakayamaTunaLongline
MSC Pre-assessment Update for Wakayama Tuna Longline Fishery March 2017
Prepared for
Yamasa Wakiguchi Suisan
Prepared by
Ocean Outcomes 421 SW 6th Ave, Ste 1400, Portland, OR 97204, USA
Pre-assessment Team: Dr. Jocelyn Drugan, Ocean Outcomes
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Wakayama longline tuna PA update Table of Contents Glossary
1. Executive summary 2. Introduction 2.1 Aims/scope 2.2 Constraints 2.3 Unit(s) of Assessment 2.4 Catch data 3. Description of the fishery 3.1 Overview of the fishery 3.3 Principle One: Target species background 3.4 Principle Two: Ecosystem background 3.5 Principle Three: Management system background 4. Evaluation Procedure 4.1 Assessment methodologies used 4.2 Stakeholders to be consulted 4.3 Harmonisation with any overlapping MSC certified fisheries 5. Traceability (issues relevant to Chain of Custody certification) 5.1 Eligibility of fishery products to enter further Chains of Custody 6. Preliminary evaluation of the fishery 6.1 Applicability of the default assessment tree 6.1.1 Expectations regarding use of the Risk-Based Framework (RBF) 6.2 Evaluation of the fishery 6.3 Summary of likely PI scoring levels 7. Gap analysis References
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Wakayama longline tuna PA update Glossary
B, B Biomass, biomass at maximum sustainable yield MSY EEZ Exclusive Economic Zone ETP Endangered,Threatened or Protected F, F Fishing rate/catching rate, fishing rate at maximum sustainable yield MSY FAO Food and Agriculture Organization [of the United Nations] FCR Fisheries Certification Requirements [for MSC] FIP Fishery Improvement Project GRT Gross register tons, one hundred cubic feet per ton IUCN International Union for Conservation of Nature JFA Japan Fisheries Agency LRP limit reference point MAFF Ministry of Agriculture, Forestry and Fisheries mt metric tons MSC Marine Stewardship Council MSY Maximum sustainable yield NGO Non-Governmental Organization PA Pre-assessment PI performance indicator RBF Risk Based Framework SSB, SSB Spawning stock biomass, spawning stock biomass at maximum sustainable yield MSY TAC Total Allowable Catch TRP target reference point UoA Unit of Assessment
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Wakayama longline tuna PA update 1. Executive summary This report is essentially an updated version of the 2012 MSC pre-assessment (PA) conducted on the Nachi-Katsuura Tuna Longline (Haenawa) Fishery. We used recent, publicly available information on stock status, bycatch species, and management to re-describe and re-evaluate potential MSC scoring ranges for the fishery. Main strengths of the fishery are that the targeted North Pacific albacore stock does not yet appear overfished, and RFMO management collects data and coordinates management across all of the countries that harvest the stock. One weakness is the lack of well defined harvest control rules, which will help ensure reduction of exploitation rate as the stock approaches limit reference points. Additionally, longline fisheries may catch species with overfished or depleted stock status, such as Pacific bluefin tuna, Western and Central Pacific bigeye tuna, and various shark species. Fishery impacts on depleted stocks will need to be considered in Fishery Improvement Project (FIP) or full assessment. 2. Introduction 2.1 Aims/scope This report provides an updated assessment and gap analysis of the MSC Pre-assessment of the Nachi-Katsuura Tuna Longline (Haenawa) Fishery, published by SCS Global Services in 2012. In particular, there is now improved information on the stock status of relevant tuna species.
This report does not attempt to duplicate a full assessment against the MSC standard. 2.2 Constraints We did not have a specific fishery client to consult for this analysis and relied on publicly posted information to develop this assessment. 2.3 Unit(s) of Assessment Species: Binnaga or albacore tuna (Thunnus alalunga) Geographical Area: Fishing takes place in the Western and Central Pacific Ocean. The main fishing areas are the coastal and offshore waters of Japan, which are traditionally divided into four fishing zones: Nihon-kinkai (waters adjacent to Japan; between latitudes N 25°and 32°and longitudes E 133°and 140°), Higashi-oki (waters off eastern coast of Japan; between latitudes N 37°and 40°and longitudes E 147°and 150°), Chunan (waters off south-central Japan; between latitudes N 10°and 30°and longitudes E 133°and 160°), and Nanpou (southern equatorial waters; south
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Wakayama longline tuna PA update of latitude N 10°). Nihon-kinkai, Higashi-oki, and Chunan are in FAO area 61(Northwest Pacific), while Nanpou is in FAO area 71 (Western Central Pacific).
Figure 1. Tuna fishing areas near Japan used by 19 GRT longline vessels. Nihon-kinkai (waters adjacent to Japan; shown in blue), Higashi-oki (waters off eastern coast of Japan; shown in red), Chunan (waters off south-central Japan; shown in green), and Nanpou (southern equatorial waters; shown in dark yellow). Figure from Watanuki and Vincent 2012. This fishery operates both inside and outside of the Japanese Exclusive Economic Zone (EEZ). Winter (December through April) is the peak time to catch Pacific bluefin, bigeye, yellowfin, and albacore in the Nihon-kinkai area. Chunan is the largest and most productive area for albacore and yellowfin, which are fished throughout the year. The tuna landing port is located in Nachikatsuura, a town in the Wakayama prefecture of Japan. Method of Capture: Tuna longline, operated by 19 GRT (hundreds of cubic feet) vessels. Stocks: There are six albacore tuna stocks assessed and managed worldwide, and this fishery targets the North Pacific Ocean stock.
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Management System: ● At the Regional Fisheries Management Organizations (RFMO) level, relevant management bodies include the Western and Central Pacific Fisheries Commission (WCPFC) and the Inter-American Tropical Tuna Commission (IATTC) ● At the national level relevant management bodies include the Japan Fisheries Agency (JFA) in the Ministry of Agriculture, Forestry and Fisheries (MAFF). 2.4 Catch data No TAC (total allowable catch) has been set for North Pacific albacore, either globally or within Japan. Total catches (in metric tons; mt) are shown in the table below.
Table 1. Albacore catch data from WCPFC 2016. Year Japan, coastal longline North Pacific, longline North Pacific, total WCPFC, total 2006 16,734 34,270 69,761 104,986 2007 18,409 31,771 94,644 126,701 2008 13,679 28,369 68,255 104,966 2009 18,183 28,802 84,114 135,476 2010 17,224 28,375 68,573 124,898 2011 16,098 35,398 80,074 115,766 2012 17,668 35,968 91,763 143,078 2013 15,110 31,624 87,208 137,567 2014 15,701 29,403 80,673 121,547 2015 12,142 23,948 64,600 113,571
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Figure 2. Albacore catches for the Japanese coastal longline fishery (blue) and for the North Pacific stock in total (red). Catch data from WCPFC (2015).
The catch trend for Japanese coastal longliners has been stable around 16,000 mt per year, with a gradual decline from 2012 to 2015. Total catches of the North Pacific stock declined by about 2500 mt between 2012 and 2015. 3. Description of the fishery 3.1 Overview of the fishery Fishery operations The 2012 SCS Pre-assessment provided a good description of the fishing gear and operations, which is copied below:
“Tuna longline used by 19-GRT vessels consists of a main line about 100 km long with 2,000 to 2,200 branch lines, each bearing one hook about 8.5 cm long. Average branch line test is 150kg. The hooks are either of circle or J-type, but mostly J-type, baited with whole sardine, mackerel scad or pacific saury. There are no regulations limiting the number of lines, hook size, or the number of hooks. The gear is set early in the morning at depths of about 150 to 200 meters. Location of sets are recorded in log books. Setting longlines takes three to four hours. Each of the buoys that mark the lines have radio transponders that help locate gear. Longline vessels are encouraged to use tori-poles (bird streamers) to reduce incidental catch of albatross and other seabirds. After the whole line is set, the gear is left to drift for three hours. Hauling takes up to 10 hours and requires a line hauler. In times of high catching ratio or under bad weather conditions, more time is needed to haul-in the lines. Tunas are dispatched soon after they are caught and bled to preserve freshness (this technique is called ikejime). The products are then soaked in seawater and cooled to the freezing point to preserve the freshness. Vessels fishing on the high seas are required to use Automatic Location Communicators (ALC) that transmits vessel locations in real time via satellite.”
In 2015, 227 Japanese coastal longliners were in operation, which was the lowest number on record (WCPFC 2016). Longline gear is not especially selective and catches multiple species in addition to tunas, such as billfish and sharks. Because the MSC standard includes shark finning as a factor in the evaluation of harvest strategy, fishery assessors should check whether shark finning takes place. History of management and fishing practices Because tunas are highly migratory species, they are managed by Regional Fishery Management Organizations (RFMOs) that have multiple member states, including Japan. The RFMOs coordinate stock assessments and make catch recommendations, while member states have the jurisdiction to implement the recommendations.
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In Japan, harvests are managed through input controls and some output controls, described as follows: ● The number of entrants in the fishery is controlled through the the national fishing license system. ● For Pacific bluefin tuna, there are recommended catch limits. Approximately 64,600 mt of albacore was caught in the North Pacific Ocean in 2015, which was a decrease of 20% from the previous year’s catch of 80,673 mt (WCPFC 2016). Longline harvests accounted for 37% of the total catch (23,948 mt), with most of the remainder coming from pole and line (33%) and troll (25%). Japanese coastal longliners caught about 12,142 mt of albacore that year. Japan’s largest coastal longliner catches of albacore occurred in the late 1990’s (on the order of 20,000 to 25,000 mt per year). Longlines tend to catch higher proportions of adults than the other gear types, which exploit younger age classes more heavily (AWG-ISC 2014). Legal/administrative status Tuna longline fisheries are classified by the type of license issued by the government. There are four license categories: coastal (smaller than 20 GRT and can fish only in the Japanese EEZ), small offshore (10-20 GRT), offshore (10-120 GRT), and distant water (larger than 120 GRT). Tuna longliners of 19 GRT are categorized as small offshore vessels and are required to have national licenses to fish on either a national scale or in international waters outside of Japan’s EEZ. The Minister of Agriculture and Fisheries strictly controls the number of licenses made available, and licenses are valid for five years. Licenses or permits often describe vessel gear requirements and any fishing restrictions, such as open/closed fishing days or areas. 3.3 Principle One: Target species background Description of fishery target species Albacore tuna (Thunnus alalunga) are globally distributed, and two stocks have been identified in the Pacific Ocean: the North Pacific and the South Pacific stocks. Differences between these stocks have been observed using several methods, including tagging data and genetic analyses (Ramon and Bailey 1996; Takagi et al. 2001). This species generally reaches maturity at five years of age, and total lifespan can be up to twelve years. Growth rates are moderate, with albacore growing to about 40 cm in their first year. Productivity is high for this species as well.
The North Pacific and the South Pacific stocks are assessed separately. The North Pacific albacore stock is managed by both the WCPFC and IATTC. Formal harvest control rules and target reference points have not yet been adopted for the stock, but the harvest strategy is based on high quality scientific advice.
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Wakayama longline tuna PA update Albacore tuna is focal species of this assessment, but Japanese coastal longliners also harvest Bigeye tuna, Yellowfin tuna, and billfish. Figure 3 shows approximate catch proportions of these target species over time.
Figure 3. Tuna and billfish catches by Japanese coastal longliners over time. Figure from WCPFC 2016.Figure, table Stock status of target species The Albacore Working Group of the ISC (International Scientific Committee for Tuna and Tuna-like Species in the North Pacific Ocean) assesses the North Pacific albacore stock, and did so most recently in 2014. The assessment uses catch and size composition data from Japan, Canada, Taiwan, Korea, USA, and some IATTC and WCPFC member countries, including China. The Stock Synthesis (SS Version 3.24f) model is age-, length-, and sex-structured, and uses sex-specific growth curves because there is evidence of sexually dimorphic growth, with adult males reaching a larger size and age than females. Evaluation of stock status was based on maximum likelihood estimates of model parameters, outputs, and their variances. The assessment scientists conducted sensitivity analyses to consider uncertainty resulting from changes in model parameters.
Model estimates of total stock biomass declined from the early 1970s to 1990, recovered through the 1990s, and then fluctuated around a stable level in the 2000s (Figure 4). Female spawning biomass (SSB) exhibited similar long-term changes. Stock depletion is estimated to be 35.8% of unfished SSB. The estimated SPR (spawners per recruit relative to the unfished population) was 0.41 in the terminal year of the assessment, which indicates a relatively low exploitation level.
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Figure 4. Model estimates of total stock biomass for fish age 1 and older (left) and female spawning biomass (right) over time. The spawning biomass figure includes 95% asymptotic confidence intervals (dashed lines). Figures from AWG-ISC (2014). Kobe plots depict stock status in relation to reference points that are typically based on maximum sustainable yield (MSY) or an MSY proxy. In the case of North Pacific albacore, no official target reference points have been established. However, stock assessment scientists evaluated stock status relative to a fishing mortality reference point (F/FMSY) that describes current fishing mortality relative to the fishing mortality level that would produce MSY, as well as a stock biomass reference point (B/BMSY) that describes current biomass relative to the biomass level that would produce MSY. The plot suggests that overfishing is not occurring, and that the stock is not in an overfished state (Fig. 5) .
Figure 5. Kobe plot showing stock trajectories in terms of F/FMSY versus B/BMSY. The grey dot is the most recent 2012 estimate. Figures from AWG-ISC (2014).
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3.4 Principle Two: Ecosystem background Primary, secondary, and ETP species Species included in this section include targeted, non-targeted, encountered, and bait species. We had no longline fishery-specific catch data to analyze, but used information in Watanuki and Vincent (2012), MSC certification reports for other longline tuna fisheries (e.g. Gascoigne et al. 2015), and Harley et al. (2014b) to identify likely primary, secondary, and ETP species. When working with a specific fishery, catch records will be needed to confirm the species caught and determine their classifications. Catches of tunas and sharks are required to be recorded.
According to MSC definitions, primary species have management tools and measures in place and are generally subject to regular stock assessments. ETP species generally include non-fish species that are protected by legislation or that have been identified as vulnerable, endangered, or critically endangered on the IUCN Red List. Any species that are not primary or ETP are considered secondary. Additionally, primary and secondary species are categorized as main or minor. Main species are those that comprise a significant proportion of the catch (> 5% generally, or >2% for less resilient species with low productivity). Since we did not have catch information for a specific Japanese longline fishery, we used catch composition data collected by observers in deep set longline fisheries (Fig. 6). Species designations are listed in Table 3.4.
Figure 6. Catch composition data for deep set longline fisheries in the Western and Central Pacific Ocean based on 10 years of observer data (2003-2014). The x-axis refers to percent of catch. Figure from Harley et al. (2014b).
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Table 2. Overview of likely encountered primary/secondary species and their MSC classifications for Japanese coastal longline tuna fisheries. Depletion category was based on stock assessments or the IUCN Red List rating, while catch percentage was from Watanuki and Vincent (2012).
Species Depleted? > 5% of the Likely MSC classification (Y/N) catch?1
Bigeye tuna (Thunnus obesus) Y Y Main primary Pacific Bluefin Tuna (Thunnus Y N Main primary (precautionary orientalis) designation) Yellowfin tuna (Thunnus albacares) N Y Main primary Skipjack tuna (Katsuwonus pelamis) N N Minor primary Black marlin (Istiompax indica) Y N Minor primary Blue marlin (Makaira nigricans) N Y Main primary Striped marlin (Kajikia audax) Y N Minor primary Indo-Pacific Sailfish (Istiophorus N N Minor secondary platypterus) Swordfish (Xiphias gladius) N N Minor primary Blue shark (Prionace glauca) N N Minor primary Longfin mako shark (Isurus paucus) Y N Minor primary Oceanic whitetip shark (Carcharhinus Y N Minor primary longimanus) Shortfin mako shark (Isurus Y N Minor primary oxyrinchus) Silky shark (Carcharhinus falciformis) Y Y Main primary Devil ray (Genus Mobula) N N Minor secondary Pelagic stingray (Pteroplatytrygon N N Minor secondary violacea) Dolphinfish (Coryphaena hippurus) N N Minor secondary Escolar or Snake mackerel N N Minor secondary (Lepidocybium flavobrunneum) Opah (Lampris guttatus) N N Minor secondary Wahoo (Acanthocybium solandri) N N Minor secondary
For the Principle 2 analyses, we focused primarily on main species. We considered five species as main primary: Bigeye tuna, Pacific bluefin tuna, Yellowfin tuna, Blue marlin, and Silky shark. Yellowfin tuna and Blue marlin may be above point of recruitment impairment (PRI), but the rest are below MSY based on available stock assessment information.
1 Or greater than 2% for less resilient species such as Longfin mako shark, Oceanic whitetip shark, and Silky shark.
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Bait species
The bait species, quantities used, and their source populations will be specific to each fishery. This information will need to be collected. Bigeye tuna
This fishery catches bigeye tuna from the Western Central and Pacific Ocean stock. The preliminary 2015 catch quantity was 128,900 mt, a decrease of 16% from the 2014 catch (ISSF 2017). Stock assessment results are shown graphically in a Kobe plot (Fig. 7), which has the ratio of current spawning stock biomass to spawning stock biomass at MSY (SSBcurrent/SSBMSY) on the x-axis and the ratio of current fishing mortality to fishing mortality at MSY on the x-axis (Fcurrent/FMSY). The most recent stock assessment was conducted in 2014, and it concluded that overfishing is occurring (Fcurrent/FMSY = 1.57) and that the stock is overfished (SSBcurrent/SSBMSY = 0.77; Fig. 7). The limit reference point (LRP) for the stock is 20%SSBF=0, or 20% of the equilibrium spawning biomass that would be expected in the absence of fishing under current environmental conditions. In 2012, SSBcurrent/SSBF=0 was 0.16, which was below the LRP. There is no target reference point, and no harvest control rules have been defined for the stock. The WCPFC has stated an objective to reduce fishing mortality to FMSY or lower, so that F/FMSY ≤ 1 (CMM 2016-01). To meet this objective, catch limits have been set: for Japan the 2016 longline catch limit was 18,625 mt, while the 2017 limit is 16,860 mt. Catches are to be reported every month to the WCPFC secretariat, who will notify a member state when 90% of its catch limit is being exceeded. Numbers of longline tuna fishing vessels cannot be increased.
Figure 7. Kobe plot showing Western Central and Pacific Ocean bigeye tuna stock status, relative to SSB/SSBMSY (x-axis) and F/FMSY (y-axis). Dots darker in color are more recent, and the pink dot shows the most recent status in 2012. Figure from Harley et al. 2014a.
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Pacific bluefin tuna
Pacific bluefin tuna is a highly migratory species, and there is thought to be only one stock in the Pacific Ocean. The preliminary 2015 catch quantity was 11,000 mt, a decrease of 36% from the 2014 catch (ISSF 2017). A stock assessment was most recently conducted in 2016, and it concluded that overfishing has continued and that the stock is still heavily overfished (Fig. 8). The estimated 2014 SSB was 17,000 mt, which is only 2.6% of the unfished level and considerably below the LRP of 20% of the unfished stock biomass set by the WCPFC for its other major tuna stocks. Official harvest control rules and a target reference point still have not been defined, despite recognition that the stock is severely depleted. The WCPFC most recently recommended reducing fishing effort and catches of bluefin tuna adults (north of 20° N) below the 2002-2004 annual average levels, and catches of juveniles (fish < 30kg) to 50% of 2002-2004 annual average levels (CMM 2016-04). Japan has set commensurate catch limits for its domestic fisheries (JFA 2015). However, it is unclear whether these limits are sufficient to allow for stock rebuilding.
Figure 8. Kobe plot showing Pacific bluefin tuna stock status, relative to SSB/SSBMED (x-axis) and F/FMED (y-axis). SSBMED is estimated as the median of estimated SSB over whole assessment period (40,944 tons) and FMED is calculated as an F to provide SSBMED in long-term. The blue and white points on the plot show the start (1952) and end (2014) year of the period modeled in the stock assessment, respectively. Figure from PBFWG-ISC (2016).
Yellowfin tuna
This fishery catches yellowfin tuna from the Western Central and Pacific Ocean stock. The preliminary 2015 catch quantity was 573,500 mt, a decrease of 4% from the 2014 catch (ISSF 2017). The most recent stock assessment was conducted in 2014, and it concluded that overfishing is not occurring (Fcurrent/FMSY = 0.72) and that the stock is not overfished (SSBcurrent/SSBMSY = 1.24; Fig. 9). However, catches in recent years have approached or exceeded MSY. The LRP for the stock is 20%SSBF=0, or 20% of the equilibrium spawning
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Wakayama longline tuna PA update biomass that would be expected in the absence of fishing under current environmental conditions. In 2012, SSBcurrent/SSBF=0 was 0.39, which was above the LRP. There is no target reference point, and no harvest control rules have been defined for the stock. The WCPFC has stated an objective to maintain fishing mortality at level that does not exceed FMSY, i.e. so that F/FMSY ≤ 1 (CMM 2016-01). WCPFC member states are supposed to take measures to not increase their longline catches of yellowfin tuna.
Figure 9. Kobe plot showing Western Central and Pacific Ocean yellowfin tuna stock status, relative to SSB/SSBMSY (x-axis) and F/FMSY (y-axis). Dots darker in color are more recent, and the pink dot shows the most recent status in 2012. Figure from Davies et al. 2014.
Marlins
Blue marlin may comprise at least 5% of the catch in deep longline sets (Fig. 6). The Pacific Ocean Blue marlin stock was most recently assessed in 2016, and the assessment suggested that stock abundance increased from 2009 to 2014 following a long period of decline (BWG-ISC 2016). The current SSB is 23% above SSBMSY, while current fishing mortality is 14% below FMSY. Thus the stock does not appear to be overfished or subject to overfishing.
Striped and Black marlin are considered minor species in this report because they are caught in smaller quantities. The Western and Central North Pacific Ocean Striped marlin stock does appear overfished and subject to overfishing based on the 2015 stock assessment. Fishing mortality was 0.94 from 2010 to 2012, or 49% above FMSY, while the 2010-2012 spawning potential ratio (SPR) was below the SPR level required to produce MSY (BWG-ISC 2015). The black marlin stock was last assessed in 2013. The assessment suggested that overfishing is occurring (F/FMSY > 1), although the stock is not currently overfished (B/BMSY > 1; IOTC Secretariat 2014). The WCPFC has conservation management measures for Striped marlin but not the other two marlin species. Sharks
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Wakayama longline tuna PA update The main shark species that may be caught in longline fisheries are Blue, Longfin and Shortfin mako, Oceanic whitetip, and Silky sharks. We treated these sharks as primary species because the WCPFC has developed relevant management measures, and they are occasionally assessed, although population information is limited. Of these species, only Silky shark was evaluated as main primary species based on its low resilience and significant catch proportion (Table 3.4). Blue sharks tend to be caught in greater numbers but may still comprise less than 5% of the catch, and they are relatively resilient. On the IUCN Red List, Longfin mako, Shortfin mako, and Oceanic whitetip sharks have been rated as Vulnerable, while Silky sharks have been rated as Near Threatened. Monitoring data are somewhat poor, but there have been concerns about population declines for all of these species (e.g. Reardon et al. 2006, Chang and Liu 2009).
The WCPFC has several conservation management measures relating to sharks (e.g. CMMs 2010-07, 2011-04, 2013-08, 2014-05). WCPFC members are supposed to have National Plans of Action for shark conservation, which minimize discards and encourage live releases of incidental catches. In particular, Oceanic whitetip and Silky sharks must be released with as little harm to the sharks as possible. Catches of key shark species must be reported to the commission, and retained shark catches should be fully utilized (as opposed to removing only the fins). Longline fisheries targeting tuna and billfish cannot use shark lines. Japan has a 2001 National Plan of Action for Conservation and Management of Sharks posted here: http://www.fao.org/3/a-bl357e.pdf. Because sharks may be caught in longline fisheries, it will be important to check whether shark finning is taking place. Seabirds
Seabirds with IUCN vulnerable, endangered, or critically endangered status would be classified as ETP species. Seabird bycatch seldom occurs from the end of August to February, but birds such as small shearwaters may be accidentally caught between March and May in the Nihon-kinkai area (Watanuki and Vincent 2012). To reduce seabird bycatch, vessels must implement at least two mitigation measures such as tori-poles (streamers) to scare away birds, or weighted lines that sink rapidly. Available information on seabird encounters is supposed to be reported. These measures are required by the WCPFC (CMM 2015-03). Sea Turtles
It is illegal to retain sea turtles, so they are avoided or released as much as possible. Encounters are minimized when longlines are set in deep water, because sea turtles tend to occur in shallower areas. Species that may be encountered include Loggerhead turtle, Olive Ridley sea turtle, and Leatherback turtle. When sea turtles are caught, they are released by cutting the branch lines. In addition, vessel owners are required to have dip nets and de-hookers to release turtles as safely as possible. Fishermen may also use larger hooks and bait to reduce turtle capture, because large baits are more difficult for them to eat. According to WCPFC management measure CMM-2008-03, fishermen need to bring any unconscious sea turtles on board and attempt to resuscitate them before returning them to the water.
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Habitats considerations Because fishing takes place in deep waters, the gear and vessels will generally not interact with bottom habitat. Nevertheless, when evaluating a specific fishery, it will be necessary to confirm the areas fished to determine which areas may be affected by fishing activity. Alternatively a consequence spatial analysis (CSA), which involves stakeholder consultation, may be conducted. When working with a fishery, the frequency of gear loss and any actions taken to retrieve gear should be investigated, as lost longlines can contribute to ghost fishing.
Any critical environments or habitats will need to be identified in relation to a specific fishery. Japan has a system of coastal and marine parks, which aim to protect scenery and natural environments, important ecological areas including spawning habitat, and cultivation areas for fishery organisms (MOE 2014). Wildlife protection areas (鳥獣保護区) and protected living areas (生息地等保護区) are established specifically to protect native and rare species. Fishery specific information would need to be collected, but we generally would not expect coastal longline vessels to harm vulnerable marine ecosystems (VMEs). Ecosystem considerations The fishery takes place in the deep ocean, and fishery impacts on the ecosystem will likely relate mostly to removal of albacore and yellowfin tuna. The ecosystem role and food web connections of these tuna species has been well studied, and significant impacts on trophic structure have not been detected thus far (Sibert et al. 2006).
At the RFMO level, the WCPFC Convention states that participants will be “conscious of the need to avoid adverse impacts on the marine environment, preserve biodiversity, maintain the integrity of marine ecosystems and minimize the risk of long-term or irreversible effects of fishing operations” (WCPFC 2013). Thus fishery impacts on ecosystems are considered, and the RFMO goal of managing stocks to MSY levels implicitly relates to ecosystem maintenance to some extent. However, an ecosystem-based management strategy has not yet been implemented. Similarly, Japan’s Fisheries Policy of 2001 states that ecosystems should be conserved (Makino 2011), but an explicit ecosystem management strategy has not yet been adopted.
3.5 Principle Three: Management system background Management structure Tunas are highly migratory and captured by multiple countries using a diverse range of methods. To better manage tuna stocks, RFMOs were created as a mechanism for tuna-fishing countries to pool resources and implement joint management. The North Pacific albacore stock spans the western and eastern Pacific Ocean and therefore falls under the jurisdiction of two RFMOs: the Western and Central Pacific Fisheries Commission (WCPFC) and the Inter American Tropical Tuna Commission (IATTC).
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Wakayama longline tuna PA update The WCPFC Convention has an explicit goal of managing fish stocks for long-term sustainable use and includes a dispute resolution framework, as well as descriptions of responsibilities and relationships with other organizations (WCPFC 2013). The convention is consistent with the principles and provisions of the United Nations Convention on the Law of the Sea (UNCLOS), the United Nations Fish Stock Agreement (FSA) and Highly Migratory Species (HMS) as well as other relevant fisheries instruments. The commission meets several times a year and also forms special working groups to address specific issues (such as the Billfish Working Group which conducts marlin stock assessments). Member states including Japan provide scientific data and advice to the WCPFC through the WCPFC Science Committee. The WCPFC periodically issues Conservation Management Measures (CMMs) to regulate and adjust fishing practices. WCPFC requires member states to produce annual reports demonstrating compliance with the CMMs. The WCPFC’s long-term objectives are generally consistent with MSC principles and criteria, but it and other RFMOs have not been very effective at maintaining sustainable levels of fishing, as shown by the continuing high levels of harvest and decline of some tuna stocks (ISSF 2017).
The International Science Committee for Tuna and Tuna-like Species (ISC) conducts stock assessments for RFMOs and present assessments at WCPFC meetings for consideration. Following discussion between the member states, the commission makes harvest levels recommendations, which member states have the responsibility to implement.
At the national level, fisheries management is administered by the Fisheries Agency of Japan (JFA) within the Ministry of Agriculture, Forestry, and Fisheries (MAFF). The JFA generally follows RFMO recommendations and may implement additional management measures as deemed necessary. At a more localized level, prefectural governments administer fishing rights and licenses within their jurisdictions (Makino 2011). Prefectural governments co-manage fisheries with fishery cooperative associations (FCAs), whose membership consists of fishermen and small fishing companies. FCAs tend to be defined by region, target species, and/or gear type. Fishery Management Organizations (FMOs) within an FCA carry out actual operational management of the fishery, but hereafter we will refer to FMOs and FCAs collectively as fisheries cooperatives. Management is coordinated amongst all these levels, generally with the JFA and prefectural governments issuing regulations and the fishery cooperatives implementing those regulations (McIlwain 2013). In Japan, there is an emphasis on resource users actively contributing to management of their own fisheries, and fishery cooperatives have considerable influence in determining operational rules (e.g. gear restrictions) and setting fishery openings and closures (Uchida and Watanabe 2008, Makino 2011). Management objectives The WCPFC Convention describes broad management objectives including the following (WCPFC 2013): ● The long-term conservation and sustainable use of highly migratory fish stocks (Article 2);
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Wakayama longline tuna PA update ● Application of the precautionary approach and precautionary reference points (Article 5); ● Consideration of the best scientific information available (Article 12); ● Application of the dispute settlement provisions of the UN Fish Stocks Agreement to resolve disputes between WCPFC Members (Article 31); ● Recognition of the interests of small scale and artisanal fishers, and of communities and small island states dependent for their food and livelihoods on tuna resources. (Article 30) The principal law that regulates commercial fishing activities in Japan is “The Fisheries Basic Act” (1949, revised in 1962), which deals with several kinds of fishing rights and licensing structures (Makino 2013). The law is administered by MAFF in cooperation with prefectural governments and includes objectives that guide decision making, fisheries development, efficient and stable fisheries management, and production and processing of marine products.
At the national level, MAFF generally follows objectives specified by the WCPFC and IATTC. Management measures The WCPFC requires tuna fishing vessels to record catches of all targeted species.
The WCPFC has also described measures specific to the North Pacific albacore stock, which include the following (CMM 2005-03): ● Total fishing effort in the convention area north of the equator shall not increase beyond current (2005) levels. ● Members shall report all catches of North Pacific albacore north of the equator and all fishing effort north of the equator to the WCPFC Commission. ● The Commission shall consider management actions with respect to recommendations of the Northern Committee which monitors stock status. ● Members shall work to to maintain, and as necessary reduce, the level of fishing effort to correspond with long-term stock sustainability. ● The WCPFC shall engage with the IATTC to reach consistent conservation and management measures of North Pacific albacore. ● Provisions of fishing effort limits shall not prejudice legitimate rights and obligations under international law of those small island developing State members and participating territories in the Convention Area whose current fishing activity for albacore is limited, but that may wish to develop their own albacore fisheries in the future. It is unclear whether MAFF has developed any specific management measures for albacore. the JFA has not placed specific objectives on longline albacore fisheries, aside from restricting entry through a licensing system.
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Monitoring, Control, Surveillance, (MCS) and Enforcement The WCPFC and IATTC have implemented systems for ensuring compliance with measures, which include vessel registration and monitoring of catch and effort. To check compliance, port monitoring, observer programs and vessel monitoring systems (VMS) are used. The WCPFC has established an enforcement program including a regional observer program (CMM 2007-01). The WCPFC requires some tuna purse seine vessels to have observers, specifically those fishing on the high seas or in two or more EEZs, but observer coverage of longline vessels is poor (ISSF 2017). The IATTC established and coordinates its own enforcement and regional observer programs that employs its own observers. Observers for both RFMOs monitor transshipments at sea, and the WCPFC also commissions some at-sea inspections, though they are relatively rare.
All vessels longer than 24m that catch tuna within the commission region must have VMS units. As with most tuna RFMOs, the WCPFC and IATTC use vessel registers to make ‘positive’ and ‘negative’ lists and identify IUU vessels.
At the national level, MAFF is responsible for monitoring, control, and surveillance. For example, MAFF determines the number of distant water tuna vessels that can operate by tonnage and fishing area, and issues licenses that are valid for five years. Requirements reflect those specified by RFMOs: all vessels must carry vessel monitoring system (VMS) units and provide data on catch and effort. While fishing in other EEZs, the vessels must obey all fishing rules and regulations pertaining to that EEZ. These requirements are specified in the fishing permits.
The JFA and Japan Coast Guard engage in some enforcement activities such as checking fishing permits, and clear provisions exist for penalizing individuals or parties who violate fishery regulations. Although harvest volumes are quantified and reported for economically valuable species, there is no systematic verification of catch information, such as dockside monitoring. There is no evidence of systematic non compliance.
For rights-based fisheries, fishery cooperatives also provide a level of enforcement because individuals who do not comply with rules may lose their membership. FMOs may have fishery regulations specified in their FRMPs, and they are generally responsible for enforcing those regulations. Specifically, individuals who fail to comply may be subject to fines, imprisonment, or restrictions/removals of fishery access. 4. Evaluation Procedure 4.1 Assessment methodologies used We conducted this evaluation using version 2.0 of the MSC Certification Requirements. No site visits were made.
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4.2 Stakeholders to be consulted Relevant stakeholders for these fisheries have been identified in Table 4 below. These stakeholders are expected to participate in subsequent assessment processes, either a full MSC assessment or a fishery improvement project (FIP) process.
Table 3. Stakeholders to be consulted
Stakeholder Interest in fisheries assessment Governmental bodies and research institutes Ministry of Agriculture, Forestry Fisheries management, catch monitoring. and Fisheries (MAFF) and Japan Fisheries Agency (JFA) Western Central Pacific Fisheries Relevant tuna RFMO Commission (WCPFC) Inter-American Tropical Tuna Relevant tuna RFMO Commission (IATTC) Industry
Yamasa Wakiguchi Suisan Subject of the 2012 MSC pre-assessment Meiho Gyogyo Co Ltd Client of overlapping, Japan-based MSC certified fishery that also targets albacore Environmental NGO stakeholders WWF Japan Has been actively engaging with tuna fisheries International Sustainable Seafood Tuna fisheries management Foundation (ISSF) Birdlife International Seabird conservation Ocean Outcomes Conducted the pre-assessment update
4.3 Harmonisation with any overlapping MSC certified fisheries Japanese longline fisheries for albacore overlap with several fisheries already certified as MSC or in assessment. These include: ● Meiho Japanese pole and line skipjack and albacore fishery (certified); ● PNA Western and Central Pacific skipjack and yellowfin tuna fishery (certified); ● AAFA and WFOA North Pacific albacore tuna (certified);
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Wakayama longline tuna PA update ● Talley’s New Zealand skipjack tuna purse seine fishery (in assessment); ● Tri Marine Western and Central Pacific skipjack and yellowfin tuna fishery (certified); ● Solomon Islands skipjack and yellowfin tuna purse seine and pole and line fishery (certified); ● Canada Highly Migratory Species Foundation (CHMSF) British albacore tuna North Pacific fishery. The MSC has been conducting scoring harmonization efforts for tuna fisheries, particularly for Principle 1 scoring (see https://improvements.msc.org/database/hms-harmonisation). We considered results from the harmonization efforts when scoring indicators within that principle.
5. Traceability (issues relevant to Chain of Custody certification) 5.1 Eligibility of fishery products to enter further Chains of Custody
Traceability Factor Description of risk factor if present. Where applicable, a description of relevant mitigation measures or traceability systems (this can include the role of existing regulatory or fishery management controls) Potential for non-certified gear/s to Probably low because licenses specify gear requirements, but be used within the fishery this should be checked. Potential for vessels from the UoC Probably low--tuna fishing vessels are required to carry VMS to fish outside the UoC or in units. different geographical areas (on the same trips or different trips) Potential for vessels outside of the Many vessels outside of the UoC fish the same stock, and the UoC or client group fishing the chance of these fish being landed as part of the UoC should be same stock checked. Risks of mixing between certified Information will need to be collected on tracking, tracing and and non-certified catch during segregation systems within the fishery storage, transport, or handling activities (including transport at sea and on land, points of landing, and sales at auction) Risks of mixing between certified Information will need to be collected. and non-certified catch during processing activities (at-sea and/or before subsequent Chain of
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Custody)
Risks of mixing between certified Information will need to be collected. and non-certified catch during transhipment
Any other risks of substitution Information will need to be collected. between fish from the UoC (certified catch) and fish from outside this unit (non-certified catch) before subsequent Chain of Custody is required
When working on traceability with a specific fishery, the limit on identification of landings from the fishery and anticipated eligibility for fish to enter further Chains of Custody will be evaluated.
6. Preliminary evaluation of the fishery 6.1 Applicability of the default assessment tree The default assessment tree appears applicable for this fishery. This fishery does not have special characteristics that would warrant revising the tree. 6.1.1 Expectations regarding use of the Risk-Based Framework (RBF) Most of the target and non-target species caught in this fishery have stock assessment or other abundance-related data, so PIs 1.1.1, 2.1.1, 2.2.1, and 2.3.1 will not need to be scored with the RBF (see Table 6.1.1 below). Similarly, there may be sufficient habitat and ecosystem information to score PIs 2.4.1 and 2.5.1 without the RBF.
Performance Criteria Criteria met? Y/N Use RBF? Y/N indicator(s)
1.1.1 Stock status Stock status reference points are Y N available, derived from either analytical stock assessment or empirical approaches 2.1.1 Primary species Stock status reference points are Y N outcome & 2.2.1 available, derived from either Secondary species analytical stock assessment or outcome empirical approaches 2.3.1 ETP species Can the impact of the fishery in Y N outcome assessment on ETP species be analytically determined?
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2.4.1 Habitats outcome Are both of the following Y N applicable: (i) Information on habitats encountered is available; and (ii) information of impact of fishery on habitats encountered is available? 2.5.1 Ecosystem Is information available to Y N outcome support an analysis of the impact of the fishery on the ecosystem?
6.2 Evaluation of the fishery Overall, this fishery may be positioned to achieve MSC certification in the near term, but results will partially depend on catches of non-target species. We determined that one performance indicator (PI 2.1.1) may score less than 60, depending on whether the fishery catches significant volumes of Pacific bluefin and bigeye tuna. Any PI with a score below 60 will result in the fishery failing a full MSC assessment. At any time, a fishery improvement project may be implemented, either as part of a general improvement process or in preparation for undergoing full MSC assessment.
Potential obstacles to certification include the following: ● Longline gear is not very selective for tuna and may catch species of conservation concern, particularly sharks and possibly sea turtles. ● Both Pacific bluefin tuna and Western Central Pacific bigeye tuna are overfished, so if they comprise a significant (> 5%) proportion of the catch, efficacy of rebuilding strategies will need to be considered. ● There will be a need for extensive cooperation from government and RFMOs to develop appropriate management measures and regulations for meeting the MSC standard.
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6.3 Summary of likely PI scoring levels
Key to likely scoring level in Table 6.3
Definition of scoring ranges for PI Shading to Instructions for filling ‘Likely Scoring outcome estimates be used Level’ cell
Information suggests fishery is not Fail Add either text (pass/pass with likely to meet the SG60 scoring condition/fail) or the numerical range issues. (<60) (<60/60-79/≥80) appropriate to the estimated outcome to the cell. Information suggests fishery will Pass with reach SG60 but may not meet all of Condition the scoring issues at SG80. A Shade the cell of each PI evaluation condition may therefore be needed. (60-79) table with the colour which represents the estimated PI score. Information suggests fishery is likely Pass to exceed SG80 resulting in an unconditional pass for this PI. Fishery (≥80) may meet one or more scoring issues at SG100 level.
Table 6.3 Simplified scoring sheet for the Wakayama longline tuna fishery. Where possible, Principle 1 scores were aligned with those determined during North Pacific albacore assessment harmonization efforts.
Principle Component Performance RBF? Likely Rationale/ Key points Indicator (Y/N) scoring
1 Outcome 1.1.1 N ≥80 The most recent stock assessment (2014) Stock status suggested that the stock is not overfished, and that there is a high degree of certainty that the stock is above the point of recruitment impairment and above MSY.
1.1.2 -- NA Stock rebuilding
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Manageme 1.2.1 Harvest -- ≥80 The harvest strategy is responsive to the state nt Strategy of the stock, and monitoring is in place. The strategy is periodically reviewed, and though not fully tested, appears to be achieving its objectives because the stock has been above SSBMSY and below FMSY. Because the fishery likely catches sharks, assessors should check whether shark finning takes place.
1.2.2 Harvest -- 60-79 Generally understood harvest rules are in control rules place, but neither the IATTC nor WCPFC has and tools defined them well enough to ensure reduction of exploitation rate as the stock approaches limit reference points. There is an interim limit reference point but no official one.
1.2.3 -- ≥80 Sufficient information relating to stock structure, Information stock productivity, fleet composition, and other and data are collected to support the harvest monitoring strategy. Stock abundance and fishery removals are regularly monitored.
1.2.4 -- ≥80 The stock is regularly assessed in a robust Assessment manner that accounts for species biology and of stock uncertainty. Stock status is evaluated relative status to reference points in a probabilistic way.
Number of PIs less than 60 0
2 Primary 2.1.1 N < 60 Bigeye tuna, Pacific bluefin tuna, and Silky Species Outcome shark are main primary species that are likely below PRI. Some measures are in place to allow for rebuilding, but they are not very restrictive and may not be expected to be effective. When working with a fishery, it will be important to determine whether catches are large enough to potentially hinder recovery.
2.1.2 -- 60-79 Measures are in place to allow for rebuilding of Management main primary species that are below PRI, but in the case of bluefin tuna, it is uncertain how well those measures are expected to work. These measures have been implemented in Japan. Assessed fisheries will need to be checked for shark finning.
2.1.3 -- ≥80 Catches are recorded, so there is adequate Information information to assess impacts on main primary species and support management measures.
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Catch information is also collected for at least some minor species.
Secondary 2.2.1 N ≥80 No main secondary species were identified, species Outcome and minor secondary species generally appear to be above biologically based limits, although information is limited.
2.2.2 -- ≥80 There are a few measures in place for Management secondary species, such as catch recording, but measures may not be necessary.
2.2.3 -- ≥80 For secondary species, catch information is Information collected, and the information is adequate for supporting a partial management strategy.
ETP 2.3.1 N 60-79 ETP species may include seabirds and turtles. species Outcome Encounters are supposed to be reported and are likely to be within limits. Direct fishery effects are likely to not hinder recovery, although evidence will be needed to confirm. It is unclear whether indirect effects on ETP species have been considered.
2.3.2 -- 60-79 WCPFC conservation management measures Management comprise a strategy for protecting ETP species. The required actions are supported by scientific study; hence there is confidence that the strategy will work. However, implementation will need to be checked for individual fisheries.
2.3.3 -- 60-79 Incidental catches of seabirds and turtles are Information supposed to be recorded and reported to the WCPFC. This information is adequate for assessing fishery mortality impacts and supporting a management strategy. However, the quality of information collected will need to be checked for individual fisheries.
Habitats 2.4.1 ≥80 Although information should be collected for Outcome Possi any specific fisheries that are evaluated, bly longlines targeting albacore are usually set in deep water, and the fishing gear is highly unlikely to contact and harm habitat. VMEs are also highly unlikely to be harmed.
2.4.2 -- ≥80 A habitats management strategy may not be Management necessary due to how these longline fisheries operate, with minimal impact on habitat. Evidence will need to be collected, but there
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will likely be some evidence that fisheries comply with relevant VME protection measures.
2.4.3 -- 60-79 Information about the main fished habitats and Information the potential interactions with fishing gear will need to be collected, or a CSA may need be conducted.
Ecosystem 2.5.1 N ≥80 The main ecosystem impacts from the fishery Outcome will probably be from removal of albacore and yellowfin tuna, and studies thus far suggest that fishery removals have not disrupted ecosystem structure and function.
2.5.2 -- ≥80 Management at both the RFMO and national Management levels considers the need to maintain ecosystem health. Ecosystem-based management does not appear to be used currently, but explicit ecosystem strategies may not yet be necessary. Management of stock abundances and use of conservation management measures implicitly control impacts from fishing on ecosystems. There is some evidence that strategies are being successfully implemented.
2.5.3 -- ≥80 Information is adequate to broadly understand Information key ecosystem elements, but impacts from the UoA on these elements have not been investigated in detail. The main functions of species affected by the fishery are known, and there is monitoring in place for inferring ecosystem consequences.
Number of PIs less than 60: 1
3 Governanc 3.1.1 -- ≥80 Relevant management bodies include the e & policy Legal and WCPFC, IATTC, and Japan’s national customary government (specifically the JFA). These framework incorporate effective legal systems and binding procedures for governing cooperation with other parties, which are expected to deliver outcomes consistent with MSC principles 1 and 2. There are transparent mechanisms for dispute resolution that have been tested and are considered effective.
3.1.2 -- ≥80 Organizations and individuals involved in the Consultation, management process have been identified, and
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roles and their roles and responsibilities are explicitly responsibilitie defined and well understood, at both national s and international levels. The system regularly seeks and accepts relevant information, demonstrates consideration of the information, and explains how the information is used. All interested parties have the opportunity to participate in the consultation process.
3.1.3 -- 60-79 The relevant management bodies have explicit Long term long term objectives that are consistent with the objectives MSC standard and the precautionary approach. However, in practice management actions have not always demonstrated adherence to a precautionary approach, as some tuna stocks have become or continue to be overfished.
Fishery 3.2.1 Fishery -- 60-79 At the RFMO level, short and long-term specific specific objectives consistent with achieving MSC manageme objectives Principle 1 and 2 outcomes are explicit. nt system However, the WCPFC and JFA have not placed specific effort or catch objectives on longline albacore fisheries, aside from restricting entry through a licensing system.
3.2.2 -- 60-79 The JFA has established decision-making Decision processes that result in measures and making strategies for achieving fishery-specific processes objectives. These processes respond to serious issues identified in relevant research, but not always in a very precautionary manner, as shown by the lack of effective recovery plans for some primary species. Management is fairly transparent and provides information on request. Any legal challenges are complied with in a timely fashion.
3.2.3 -- ≥80 An MCS system has been implemented in the Compliance fishery, and has demonstrated an ability to and enforce relevant management measures. enforcement Sanctions are consistently applied to non-compliant individuals or vessels, and evidence suggests that fishers comply with the management system. There is no evidence of systematic non-compliance.
3.2.4 -- ≥80 Especially at the RFMO level, there are Management mechanisms in place for evaluating key parts of performance the fishery-specific management system. The evaluation
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system is subject to regular internal and external review.
Number of PIs less than 60: 0
7. Gap analysis and recommended strategies for addressing improving performance against the MSC standard
Additional information from specific fisheries will need to be collected in the following areas:
● Catch profile, consisting of catch volumes for all target species and catch information for all bycatch species (including sharks, seabirds, turtles, marine mammals) ● Actions (measures, gear modifications) used to reduce unwanted bycatch ● Investigation into whether shark finning takes place ● Information about bait species, including volumes used and the source populations/stocks ● Information about gear loss to consider potential effects of ghost fishing ● Tracking, tracing, and segregation processes for fishery products
Ocean Outcomes has collaborated with Yamasa Wakiguchi Suisan to develop a separate workplan for addressing information gaps and improving performance against the MSC standard. In summary, the following strategies were recommended: ● Review the harvest control rule and management strategy evaluation process of the WCPFC. Ensure support from the Japanese government in this process. ● Determine whether sharks are a target species, and if needed, develop a plan to eliminate shark finning. ● Confirm whether the fishery catches significant quantities of depleted species, and develop a management strategy for these species. ● Estimate fishery impacts on ETP species and develop a plan for reducing those impacts. ● Collect information about potential habitat impacts of lost gear. If needed, develop and implement an effective strategy to minimize negative habitat impacts from the fishery.
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Wakayama longline tuna PA update ● Develop fishery-specific objectives aligned with WCPFC and MSC principles 1 and 2, and include them in the fishery management plan. Review and adjust objectives as needed. ● Collect information to show that decision-making processes: (1) respond to important issues identified in relevant research, monitoring, evaluation, and consultation, in a transparent, timely, and adaptive manner; (2) use the precautionary approach and are based on best available information. If needed, incorporate the precautionary approach into decision-making processes. ● Collect information to demonstrate that the management system complies with judicial decisions arising from any legal challenges in a timely manner.
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Wakayama longline tuna PA update References
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