FISHERIES DIVERSIFICATION PROGRAM

Environmental Awareness and Conservation Technology

The Gillnet: A controversial fishing gear requires responsible fishermen

GOVERNMENT OF NEWFOUNDLAND 4,7 AND LABRADOR FISHERIES DIVERSIFICATION PROGRAM Environmental Awareness & Conservation Technology

When The Atlantic Groundfish Strategy (TAGS) ended, the governments of Canada and of Newfoundland and Labrador introduced in August, 1999, a new program supporting the transition of rural communities from dependency to self-reliance: the Canadian Fisheries Adjustment and Restructuring Initiative (CFARI). A critical part of this initiative is the $81.25 million Canada-Newfoundland Agreement for the Economic Development Component of the CFARI. This funding is shared 80 per cent ($65 million) by the Government of Canada, through the Atlantic Canada Opportunities Agency (ACO A), and 20 per cent ($16.25 million) by the Government of Newfoundland and Labrador, through the Department of Intergovernmental Affairs. The overall objective of the Economic Development Component is to help rural areas adjust to the realities of the new fishery, and to make them less dependent on seasonal industries and income support programs.

The $10 million Fisheries Diversification Program (FbP) is part of the Economic Development Component of the CFARI. The Program has four basic objectives: • To diversify the province's fishing industry in an environmentally sustainable way. • To maximize the value of the fishing industry to the province's economy. • To pursue research and/or development initiatives that are of long-term, industry-wide benefit. • To make the benefits of research and/or development initiatives available to the whole industry. Environmental Awareness and Conservation Technology (EACT) is one of four FDP components. It is managed by the Department of Fisheries and Oceans. The other three components, Emerging Fisheries Development, Productivity and Product Development, and Market Intelligence and Trade Development, are managed by the provincial Department of Fisheries and Aquaculture.

The Environmental Awareness and Conservation Technology component funds efforts to enhance awareness of the impacts that new fisheries have on their environments and ecosystems, thereby reducing the possibility of conflicts between emerging and traditional fisheries. This component also focuses on conservation technology, a relatively new area of investigation which is receiving increasing attention world-wide. The component pursues gear technology-related solutions to harvesting problems, such as species by-catch and size selectivity - in both traditional and emerging fisheries - availing where possible of ongoing national and international research in conservation technology.

This brochure, together with a complementary video and poster, promotes the responsible use of gillnets. All three initiatives are funded by the Environmental Awareness and Conservation Technology component.

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nets continue to fish untended, for months or The Gil!net Debate even years. There is wide variation in the estimates of the numbers of 'ghost-nets', Gillnetting is an ancient fishing technology, how long they fish and how much fish they efficient and cost-effective across a wide catch, and therefore much debate about the range of species. However, while a gillnet of a seriousness of the problem. However, virtually particular mesh size is very selective in the everyone agrees that in some gillnet fisheries, size of fish it retains, it is not nearly as 'ghost-fishing' is a significant problem, and selective in species. So a gillnet set for cod, that measures must be taken to reduce it. for example, may also catch crab, turbot, redfish, American plaice, etc. In recent years, There have been suggestions, even official for reasons of conservation and the quality of recommendations, that gillnets should be fish landed, gillnets have come under serious banned altogether from certain fisheries and criticism in certain areas and certain certain areas. Others maintain, however, that fisheries. Their use in groundfish fisheries there are problems of one sort or another has been more and more closely scrutinized, with all gear types. They argue, for example, and brought under growing restraints and that longlines catch smaller, less mature fish restrictions. than gillnets, thereby putting even greater pressure on depleted stocks. Otter trawls are The quality of fish landed becomes an issue said to damage the ocean bottom and bottom- when gillnets are not frequently hauled. Fish dwelling species such as snow crab. Some trapped in the nets for a number of days can fishing gears have selectivity problems, deteriorate significantly, especially during catching various species other than those the periods of warm weather. Predators such as fishermen are directing for. People who sea lice, hagfish and snow crab can also reduce defend the use of gillnets, say the answer to the quality of fish left in the nets too long. their perceived problems - as well as the problems with other fishing gears - is more More troubling is the problem of 'ghost- responsible use of the gear. fishing'. This occurs when lost or abandoned

When handled responsibly, gillnets can be used to produce good landings of consistently high quality fresh fish, such as these cod and American plaice.

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Responsible fishing is at the center of efforts species, area to area, season to season. It is by the fishing industry, in partnership with safe to say, however, that there are tens of Fisheries and Oceans Canada, to make gillnets thousands in the water annually for varying more quality- and environment-friendly. The periods of time. Canadian Code of Conduct for Responsible Fishing is an excellent example of the results Lost gear - recovery efforts of this partnership.

Since the first moratorium on cod fishing was Gillnets in Newfoundland and announced in July, 1992, the number of Labrador gillnets in use throughout Newfoundland and Labrador has declined dramatically. Every year, however, some gillnets are lost. Some Monofilament gillnetting was introduced into are swept away by storms, ice or heavy tides. the Newfoundland and Labrador fisheries in Others are lost through conflicts with other the 1960's, and over the next decade became gears, or have their buoy lines cut by passing important throughout much of the province, vessels. In some cases, nets have been cut especially in the inshore cod fishery. The adrift by rival fisherman, and sometimes nets principal species fished with groundfish have been abandoned at season's end or after gillnets today are cod, turbot, lumpfish, skate, quotas have been caught. blackback (winter flounder), American plaice and white hake. No one knows for sure how many gillnets are lost in the run of a year. No regular or widespread studies of the problem have been carried out, and figures presented over the years by various parties have not always been supported by strong research.

In 1975, Fishing News International reported that approximately 5,000 gillnets were lost in Newfoundland waters during the previous year. In 1992, a discussion paper prepared by One of the great advantages of groundfish gillnets is a St. John's company stated that that they can be fished with vessels of all sizes. approximately 80,000 gillnets were lost throughout Atlantic Canadian waters during It is difficult to determine exactly how many the period 1982-92, two-thirds of them in groundfish gillnets are set in the province's deep water. waters in any given year. Approximately 4,700 Newfoundland and Labrador fishermen are During the 1999-2000 winter cod fishery in eligible to fish groundfish with gillnets. These Placentia Bay, many cod gillnets were lost fishermen are licensed to fish other gears as when a large influx of fishermen from well. Gillnet use will vary from species to throughout NAFO sub-division 3Ps resulted in

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an unprecedented number of nets in the bay. fishermen. The retrieval effort was part of an Fishers reported the loss of more than 180 extensive investigation aimed at enforcing the nets. Because some fishermen are negligent in requirement to report lost gear and to remove reporting gear losses, it is almost certain that nets from the water before season close time. the total number lost was higher, though how much higher is impossible to say.

The most exact figures on the problem come from the few efforts made to recover lost gillnets over the years - though it is recognized that such efforts do not come close to a full recovery of nets lost. In a 20- sea-day period in November-December, 1975, a total of 148 gillnets were retrieved off Trinity Bay and Bonavista Bay. In October- Fishery Officers inspect gillnets pulled from Placentia November, 1976, a total of 176 nets were Bay waters in March, 2000. recovered from the Notre Dame Bay area. Most of the gear recovered in these two operations was in good condition and was 'Ghost-fishing' estimated to have been lost sometime during the previous four years. There is no doubt that lost and abandoned gillnets continue to catch and kill fish of In February, 1984, the local Fishermen's various species. However, the question of how Committee at St. Joseph's, St. Mary's Bay, much fish is destroyed is debated even more with DFO funding, undertook a 15-day than the numbers of nets lost. Some people recovery effort around Cape Pine. Only 16 speculate that gilinets lost in shallow water - nets were recovered. In November of that under 50 fathoms - tend to be rolled up and year, the St. Brides, Placentia Bay, put out of fishing order by the first storm Fishermen's Committee failed to find any nets that occurs after they are lost. However, in a five-day recovery effort, despite reports gillnets lost in deeper water have been of gear having been lost. Both of these areas retrieved after several years with live as well had very rough bottom conditions, and damage as dead fish in them. In general, the length of to retrieval gear was frequent. time a lost net continues to fish is significantly affected by a number of factors, From May, 1999, to April, 2000, Fishery including water depth, bottom conditions, and Officers recovered approximately 60 lost or current, wave and tidal actions. Some nets are abandoned cod gilinets in Placentia Bay. Many rolled up or become filled with debris and of these were taken up in a major retrieval marine growth, and are thus rendered effort after the fishery closed in March, ineffective for fishing, in a matter of months. 2000. The department was reacting partly to Others will remain in more or less good fishing reports that some of the nets lost had been order for as long as three or four years or deliberately abandoned, or cut adrift by rival more.

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Creeper onboard

Long mooring lines, lead-ropes on the mooring lines, radar reflectors, large inflated buoys, net tags, and a retrieval device, or 'creeper', onboard should be routine practises of responsible gillnet fishermen.

FISHERIES DIVERSIFICATION PROGRAM Environmental Awareness and Conservation Technology 6

The 148 nets recovered in Trinity Bay and fisheries management measures, the Bonavista Bay in 1975 contained a total of development of a set of 'best practises' for 10,087 lbs of fish, including 4,335 lbs of gillnet use, and actions to inform and advise turbot and 3,220 lbs of snow crab. The 176 fishermen on the proper, responsible use of nets recovered the following year off Notre gillnets. dame Bay contained 16,327 lbs of fish, again mainly turbot and crab. A video entitled The Gil!net Debate was produced in March, 2001. It discusses the pros and cons of gillnet use, and sets out various practises by which responsible fishermen can make effective, non-damaging use of this potentially destructive gear. The video is available for borrowing, by fishermen and other interested persons, from video libraries established in 23 DFO and DFA (provincial Department of Fisheries and Aquaculture) offices throughout the province.

Most fish taken from lost gillnets when they are recovered is long dead and rotten, but quantities of still-fresh fish indicate clearly that the nets can keep fishing for a long time.

More than 32,000 lbs of cod was found in the nets recovered in Placentia Bay. Of this amount, about 30,000 lbs was rotten and dumped at sea, about 1,500 lbs was released alive and about 800 lbs was retained and sold in good condition.

It is clear that as long as lost gillnets remain untangled or only partially tangled, they will continue month after month, year after year, to catch and destroy whatever species encounter them.

How DFO and fishermen are GOVERNMENT OF NEWFOUNDLAND dealing with the problem ®® AND LABRADOR

In this video, produced in March, 2000, The Department of Fisheries and Oceans has fishermen discuss the pros and cons of gillnets, attacked the problem of lost and abandoned highlighting the need to use them responsibly if gillnets from different angles, including they are to be used at all.

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This brochure, together with a complementary In many areas, gillnets must be removed poster, has also been produced to supplement from the water by October31. and reinforce the basic message of the video, which is that gillnets must be used responsibly Best practices if they are to continue to have an important place in our fisheries. DFO has also defined certain fishing practices as 'best practises' for fishing gillnets Management measures responsibly. These practises will minimize the impact of gillnets on fish stocks, fish habitat The department has also put in place, as and the marine environment generally, and will conditions of receiving a fishing licence, help ensure good quality, high value landings. certain management measures that fishermen They are aimed mainly at preventing gear loss. must follow when engaged in certain gillnet Most people consider such practices 'common fisheries. sense', and many fishermen have long been accustomed to following most if not all of )=- Limits have been put on the number of them. gillnets that can be set in certain fisheries in particular areas. Don't set more gear than can be handled regularly and efficiently under most Nets in certain fisheries were required conditions. One of the main causes of lost to be tagged in 2001. This measure will gear is the setting of too many nets. be extended to all gillnet fisheries in all Perhaps the gear can all be tended in a areas in 2002. timely fashion as long as weather and other conditions are excellent, but as soon as something occurs to slow things down, gear is left untended for extended periods of time, and the chance of nets coming unmoored or being dragged off the grounds is greatly increased. Fishermen must report the loss of any gillnets. Always use radar reflectors to mark gear. Place them at both ends of a fleet Minimum mesh sizes are regulated in the of nets. Radar reflectors don't just help various gillnet fisheries, to reduce the fishermen find their gear under difficult catch of small fish and to reduce by- weather conditions. More importantly, catch of other species. they warn other fishermen, and other marine traffic, that fishing gear is nearby ➢ In specified areas, inshore nets must be and they should proceed with caution. tended within 48 hours, and offshore nets Many gillnets are loss when passing vessels must be tended within 72 hours. cut or tear away buoy lines, and marker buoys are lost.

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v Use lead-ropes to sink the buoy lines. The lead-rope should be placed well down the buoy line, to ensure that none of the buoy line floats at or near the surface. This will make sure that buoy lines are not cut or torn away by passing vessels.

v Pay attention to weather patterns and the forecast at all times and don't set gear when high winds are expected. The radar reflector, or highflyer, provides convenient When the weather is too rough for tending and protective visibility for gillnets under varying gear, the quality of the catch suffers from weather conditions. being in the nets too long, and there is a greater chance that nets will be lost. On the other hand, fishermen who attempt to haul nets in high winds and rough seas are operating under unnecessarily dangerous conditions. There is also a greater likelihood of damaging nets, and of losing fish out of the nets, while hauling gear under such conditions. Use inflatable buoys, large enough to stay afloat even if the gear is dragged into v Don't set gear across other people's water deeper than the buoy line. When gear, whether it be gillnets or anything tide or ice drags gear off the grounds into else. Sometimes gillnets are lost because deeper water, small buoys, especially the buoy lines are deliberately cut. This may wooden buoys, will be dragged under the be done for one of a number of reasons, but water by the weight of the nets, and will be probably the most frequent cause is setting no help in locating the displaced gear. gear where it may interfere with other gear

v Use buoy lines at least one and one half times the depth of the water where the gear is set. This serves a similar purpose to using large, inflatable buoys. If gear is dragged into deeper water, the buoys will still remain fully afloat if the buoy lines are long enough.

v Place buoyed lines at each end of a fleet of nets. It will double the protective features of visibility and flotation. Turbot, flounder and porcupine crab taken from gillnets recovered from deep northern waters.

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search is started soon after the loss of the gear was discovered, the lost nets will probably be recovered.

Canadian Code of Conduct for Responsible Fishing Operations

Across Canada, fish harvesters' organizations are signing on to the Canadian Code of Conduct An unappetising mess of snow crab and rotten cod in for Responsible Fishing Operations. The nets coming out of Placentia in February, 2001. creation of the Code was first proposed at a DFO-fishing industry meeting in 1994. An or with the tending of it. Fishers should set Industry Steering Group was formed to their gear parallel to any other gear in the oversee development of the Code, and a DFO immediate area where they are fishing. secretariat was set up to provide support.

Don't set fishing gear in high traffic Fish harvesters throughout the country were lanes. Setting gear in specific areas consulted as the Code was being developed. In constantly used by vessel traffic multiplies January, 1998, more than 60 representatives the chances of lines being cut or nets of fish harvesters organizations endorsed the dragged off the grounds. Code text and set out a ratification process. A Canadian Carry some sort of gillnet retrieval Responsible gear onboard. If buoy lines have been lost, Fishing the gear may be hard to locate precisely. It Board was may even be dragged off the location where set up and it was set. Every vessel should have onboard given a

a device (often called a 'creeper') that can mandate ('

Ws 1 ' I/I ( -'0(/ be used to drag the bottom for displaced to seek I 0/ r " • () /Ith i , , , or lost nets. There are various designs, . 1/1/42 /Or " Pori / lion\ some home-made, some available commercially.

Start searching right away for displaced or lost nets. belaying the search only increases the likelihood that the gear will not be found, and that it will stay in the water fishing for weeks, months, even years, into the future. brag the creeper in the area where the lost gillnets were set, on a line perpendicular to the set. If the

Environmental Awareness and Conservation Technology ratification of the Code by fish harvesters across Canada. More than 60 organizations, representing over 80 per cent of Canadian fish harvesters, have so far ratified the Code, and others are in the process of doing so.

Canada is the first country to adopt a national Responsible Fishing Code. It builds on the International Code of Conduct for Responsible Fishing developed by the United Nations Food and Agricultural Organization (FAO) and adopted in 1995 by 80 countries. The heart of Canada's Code is nine basic principles. From these flow 36 operational guidelines aimed at achieving the Code's main objective, which is to:

Achieve sustainability in marine and freshwater fisheries for present and future generations of Canadians by directly contributing to the conservation of stocks and the protection of the aquatic environment.

In other words, a fundamental job of the Responsible Fishing Board, guided by the principles and operational guidelines of the Code, is to ensure - through education, consultation and co-operation - that all fishing Published by: gears, gillnets included, are used responsibly by fish harvesters everywhere in Canada. Fisheries and Oceans Canada Fisheries Management Sector Program Planning & Coordination P.O. Box 5667 St. John's NF A1C 5X1

For further information:

Tel: 709.772.4438 Fax: 709.772.2110

F11)13 Project No. 260

November, 2001