FINAL REPORT Baja California, Mexico Scientific Certification System, Inc. Red Rock Lobster Fishery
An MSC Assessment of the Red Rock Lobster Fishery Baja California, Mexico
Prepared for:
• Federación Regional de Sociedades Cooperativas de la Industria Pesquera Baja California F.C.L (Baja California Regional Federation of the Fishing Cooperative Societies) • World Wildlife Fund (US)
20 March 2004
Prepared by
Chet Chaffee Scientific Certification Systems Emeryville, CA USA
Scientific Evaluation Team:
• Dr. Bruce Phillips, Curtin University of Technology, Western Australia • Dr. Daniel Lluch Belda, Centro Interdisciplinario de Ciencias Marinas del IPN • Dr. Arturo Muhlia, Centro de Investigaciones Biologicas Noroeste, Sociedad Civil
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Preface
This report has been prepared at the request of World Wildlife Fund (US) and the Federación Regional de Sociedades Cooperativas de la Industria Pesquera Baja California F.C.L (Baja California Regional Federation of the Fishing Cooperative Societies). Cooperation and assistance from Communidad y Biodiversidad (CoBi) was an essential component of this project from initial discussions through the completion of this report. The information in this report is considered confidential and may only be quoted in full. Selective quotations are not permitted.
Most of the scientific information in this report regarding the status of stocks; the scope of the lobster fisheries in central Baja California, Mexico; the ecological aspects of the fisheries, and the management system of the fishery was provided by a number of people. In specific, information was received through the graciousness of Armando Vega and colleagues (CRIP La Paz), Luis Bourillon and Amy Weaver (COBI), Mario Ramade (Federation of Cooperatives), and officers and members of a number of the cooperatives in the Federation. In addition, World Wildlife Fund (US) provided much of the financial support for information gathering and review of information by the evaluation team.
Any misrepresentation or misinterpretation of the information contained herein is the sole responsibility of SCS and cannot be attributed to any other persons.
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Table of Contents
PREFACE ...... 2
TABLE OF CONTENTS...... 3
1. INTRODUCTION...... 5
2. SCOPE OF THE ASSESSMENT...... 5
3. THE RED LOBSTER FISHERY IN THE CENTRAL ZONE OF BAJA CALIFORNIA, MEXICO...... 6 3.1 BIOLOGICAL FEATURES OF P. INTERUPTUS ...... 6 3.2 THE GEOGRAPHIC ASPECTS OF THE FISHERY ...... 6 3.3 FISHERS...... 7 3.4 FISHING AND PROCESSING...... 8 3.5 THE FISHERY MANAGEMENT SYSTEM ...... 8 3.5.1 Management Authorities...... 8 3.5.2 Fishing Rights...... 9 3.5.3 Regulations...... 9 3.5.4 Catch and CPUE trends...... 10 3.6 KEY ENVIRONMENTAL FEATURES...... 11 3.6.1 Habitat...... 11 3.6.2 Bycatch ...... 11 3.6.3 Ghost Fishing ...... 12 4. OTHER FISHERIES IN VICINITY NOT SUBJECT TO CERTIFICATION...... 12
5. MSC EVALUATION PROCESS ...... 12 5.1 MSC STANDARDS FOR SUSTAINABLE FISHERIES MANAGEMENT...... 12 PRINCIPLE 1 ...... 12 PRINCIPLE 2 ...... 13 PRINCIPLE 3 ...... 13 5.2 MSC REQUIRED EVALUATION AND CERTIFICATION METHODS ...... 15 5.3 EVALUATION TEAM ...... 16 5.4 BAJA CALIFORNIA RED LOBSTER EVALUATION PROCESS...... 18 5.4.1 Drafting of Performance Indicators and Scoring Guidelines...... 19 5.4.3 Review of client submitted data addressing the performance indicators...... 20 5.4.4 Meetings and Consultations ...... 20 5.4.5 Weighting and Scoring Performance Indicators ...... 32 6. EVALUATION RESULTS ...... 33 MSC PRINCIPLE 1 ...... 33 MSC PRINCIPLE 2 ...... 43 MSC PRINCIPLE 3 ...... 48 7. CERTIFICATION RECOMMENDATION...... 60 7.1 CERTIFICATION RECOMMENDATION AND SCORING...... 60 7.2 CONDITIONS FOR CONTINUED CERTIFICATION...... 62 7.2.1 General Conditions for Continued Certification ...... 63 7.2.2 Specific Conditions for Continued Certification...... 63 7.2.3 Recommendations...... 64 8. MSC LOGO LICENSING RESPONSIBILITIES ...... 64
REFERENCES ...... 66
APPENDIX 1. FISHING ZONES IN CENTRAL BAJA CALIFORNIA, MEXICO...... 116
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APPENDIX 2. MEXICO FISHERIES MANAGEMENT AUTHORITIES ...... 117
APPENDIX 3. CURRICULUM VITAES FOR EVALUATION TEAM...... 118
APPENDIX 4. LIST OF PAPERS SHOWING SCIENTIFIC STUDIES ON NEARSHORE MARINE ECOSYSTEMS IN BAJA CALIFORNIA, MEXICO...... 154
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1. Introduction
The Marine Stewardship Council (MSC) is a non-profit organization dedicated to the long-term protection or “sustainability” of marine fisheries and related habitats. First started as a joint initiative between Unilever and the World Wildlife Fund (WWF), the MSC is now a fully independent organization that is governed by an independent Board of Directors advised by a panel of scientific, economic, and fishery experts.
The MSC’s original mission statement promoted responsible, environmentally appropriate, socially beneficial, and economically viable fisheries practices, as well as the maintenance of biodiversity, productivity and ecological processes of the marine environment. The current MSC mission statement (redrafted in 2001) provides a slightly more focused mission and reads,
“To safeguard the world’s seafood supply by promoting the best environmental choice”.
Dedicated to promoting “well-managed” or “sustainable” fisheries, the MSC initiative intends to identify such fisheries through means of independent third-party assessments and certification. Once certified, fisheries will be awarded the opportunity to utilize an MSC promoted eco-label to gain economic advantages in the marketplace. Through certification and eco-labelling, the MSC intends to promote and encourage better management of world fisheries, many of which have been suggested to suffer from poor management.
The Marine Stewardship Council developed standards for sustainable fisheries management in a three-step process (May, Leadbitter, Sutton, and Weber, 2003): 1) Assemble a group of experts in Bagshot (UK) to draft an initial set of Principles and Criteria; 2) Conduct an 18-month process to review the standard in 8 major international venues; and 3) Convene a second set of experts in Warrenton, Virginia (Airlie Conference Center, USA) to revise and finalize the MSC Principles and Criteria.
The final MSC standard (see below) was issued in 1998, and has since been used as the basis by which fisheries are evaluated under the MSC program to qualify as certifiable and able to utilize the MSC eco-label.
2. Scope of the Assessment
It should be clear that the fishery under consideration for this assessment is that fishery conducted by 9 Cooperatives in the Federacion Regional de Sociedades Cooperativas of “Baja California” fishing a single stock of the red lobster (Panulirus interuptus) in the central zone in Baja California, Mexico (from Isla Cedros to Punta Abreojos). The aim of this report is to detail the information provided by the clients, the management authorities, and stakeholders in the fishery; the evaluation procedures; and the evaluation team's findings as they pertain to determining the degree of compliance of this fishery with the Marine Stewardship Council (MSC) Principles and Criteria for Sustainable Fishing.
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Three special considerations were applied to this fishery assessment:
1. The MSC procedures require a certification body to apply the MSC Principles and Criteria to identified stocks when examining information under Principle 1. The stock of Panulirus interuptus fished in the Central Zone of Baja California extends south to the southern portion of Baja California Sur and north into the southern portion of California (USA). Therefore, the assessment conducted includes an examination of the status of the stock over this entire range. 2. The MSC procedures require that the certification body examine the management system under Principle 3. The management system of the fishery assessed in this report is a community-based system that includes cooperative management between fishers and the government. All roles and process of each of the entities were included in this evaluation. 3. The MSC process requires the certification body examine potential ecosystem impacts resulting from the fishery. The scope under the MSC evaluation system is limited to those impacts that are directly caused by the fishery, and not by other extraneous sources.
3. The Red Lobster Fishery in the central zone of Baja California, Mexico
3.1 Biological features of P. interuptus
Panulirus interuptus occurs in rocky areas from the low intertidal zone to depths of around 100 m. Females have one brood per year. Females breed earlier in the northern areas (June), than in the central (July) and southern parts (August) of Baja California (Vega et al. 1991). Fecundity also follows a latitudinal trend, with females producing fewer eggs per brood in the north than in the south of the peninsula (Pineda and Diaz 1983). Breeding and hatching occur in shallow areas (< 20 m), into which adults move in the spring. Lobsters return to deeper waters in the autumn (Ayala et al. 1988).
The duration of the larval period was estimated as 7.75 months (Jonhson, 1960). In Bahía Tortugas, Baja California Sur, pueruli settled on artificial collectors most of the year, but with a major peak in autumn (September-October) and a minor peak in spring (March-June) (Guzman et al. 1994). Recently settled pueruli and small juveniles commonly inhabit 0-4 m deep rocky habitats which have dense plant cover, particularly the surf grass Phyllospadix torreyi. Juveniles and subadults are highly gregarious.
Growth studies on P. interuptus in Mexico have been performed using a number of methods. Age at sexual maturity (65 mm CL) is estimated to be 3 years for males and 5 for females, but other estimates are respectively, 4.5 and 6 years. Similarly, age of males and females at minimum legal size (82.5 mm CL) was estimated as 4 and 7 years, and at 6.5 and 8.5 year.
3.2 The Geographic Aspects of the Fishery
The Panulirus interuptus fishery in Baja California, for which Ayala et al. (1988), Vega & Lluch-Cota (1992), and Vega et al. (1996), have provided a thorough history, 20 March 2004 6 Document No. SCS.BCL.FD.032004
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dates from the turn of the century. Also known as red lobster or California lobster, Panulirus interuptus is fished commercially in Mexico in an area from the border with the USA to Margarita Island. However, the main portion of the stock is between Cedros Island and Punta Abreojos along the coast of Mexico between 28.6°N 115.5° W to 26.6°N 113.2° W. Most of this area is part of the Vizcaíno Biosphere Reserve, except Cedros Island, within a 5 km band along the shore. The zones of the fishery are shown in Appendix 1.
Small numbers (less than 1% of the catch) of Panulirus inflatus are also caught in the fishery, but this species is not considered in this assessment. The P. inflatus are predominantly caught in the southern most part of the central zone and therefore only affect 2 of the cooperatives in the Federation.
Panulirus interuptus is also fished both commercially and recreationally in California in the USA.
3.3 Fishers
In Baja California, 26 fishing cooperatives exploit P. interuptus. However, only 10 cooperatives operating in the central region of the Peninsula, from Punta Abreojos to Isla Cedros catch around 80% of the total catch of this species. Nine (9) of the cooperatives are in the Federation, the client for this assessment. The tenth cooperative is small and lies in the northern most part of the central zone.
Members of the nine fishing cooperatives are part of the Federation. They are distributed in ten villages in the center of the fishing area, and participate in setting out wire traps using 7 m skiffs with outboard motors. Details of the number of members, boats and traps are given in Table 1.
Table 1 Cooperatives in operation (2002) in the central zone in Baja California
NAME OF THE Number of Number Number Traps Traps COOPERATIVE Members Of boats Boats Authorized Worked Authorized Worked PESCADORES 167 22 19 1,480 1,480 NACIONALES DE ABULON BUZOS Y PESCADORES 86 24 18 1,440 1,170 LA PURISIMA 96 36 30 2,500 1,950 BAHIA TORTUGAS 87 22 21 1,320 1,260 EMANCIPACION 77 33 29 1,760 1,595 CALIFORNIA DE SAN 195 20 16 1,040 960 IGNACIO LEYES DE REFORMA 185 18 18 1,045 900 PROGRESO 210 40 28 2,600 1,960 PUNTA ABREOJOS 191 45 41 2,700 2,665 Total 1294 260 228 15885 13940
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A special feature of the Cooperatives is that there is a biologist or technician employed at each of the 9 cooperatives to assist with data collection and to provide advice and assistance to the Cooperative, to the Federation, and to government agencies.
3.4 Fishing and Processing
Panulirus interuptus is caught with traps. The traps are rectangular and covered with galvanized, plastic-sheathed wire mesh. Wooden traps are used only in the southernmost part of the Baja California Peninsula, not in the Cooperatives in the Federation. Traps are baited with fish or molluscs. Traps are fitted with escape gaps. These are gaps in the sides of the trap to allow small lobster, less than legal size, to escape. This increases the protection for small lobsters.
Tangle nets are not permitted for fishing lobster in Baja California, according to the rules updated in The new National Fishing Chart (Carta Nacional Pesquera, Diario Oficial 28/08/00). There may be some use of these nets by illegal fishermen, but estimates of illegal fishing are small (persona communication with CRIP scientists in La Paz). These nets used to be common in the central and southern Pacific states of Mexico, where a small scale, multispecific and artisinal fishery on tropical lobsters takes place.
Fiberglass boats now in use measure 5-7 m long and are propelled by outboard, 40-65 HP (i.e. 29.8-48.5 kW), motors. In the north and center of the Peninsula, boats are equipped with hydraulic winches. Fishermen keep caught lobsters alive for a few days in special floating wooden containers called "recibas".
Live lobsters are transported by boat to reception centers distributed along the coast. Most of the catch is sold alive; however, some are steam-cooked whole, packed in boxes and frozen or processed as frozen lobster tails. The main market for Baja lobster is Asia. The lobsters are taken under bond to San Diego and Los Angeles, and then transshipped mainly to Taiwan.
3.5 The Fishery Management System
3.5.1 Management Authorities
There is no specific management plan for the Baja red lobster fishery but there is a management structure for all the lobster fisheries in Mexico. It is based in Federal law, which also considers all of the marine resources, including several species of lobster along the Mexican Pacific and Atlantic coasts.
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The National Commission on Aquaculture and Fisheries (Comisión Nacional de Acuacultura y Pesca, CONAPESCA) is now responsible for the management of fisheries in the whole country. It considers the advice from the National Institute of Fisheries (Instituto Nacional de la Pesca – INP) based on the information generated by the different Regional Centers (CRIPs) in the country. The decision making office (Administración de Pesquerías) belonging to CONAPESCA is in charge of issuing policies, permits and management regulations, and compliance and enforcement (previously carried out by the Procuraduría Federal de Protección al Ambiente – PROFEPA).
Within each state there is a Fisheries Committee where all fishing issues are brought to stakeholders for discussion and comments and recommendations compiled and presented to the corresponding authorities of CONAPESCA.
Advice about science and management is provided to the Fisheries subsecretary in SAGARPA by the National Fisheries Institute (INP), with its local research institutions or CRIPs (Centros Regionales de Investigacion Pesquera). This part of the management system functions well to set agreed regulations provided by the INP.
Appendix 2 shows an outline of the Mexican authorities involved in the Baja Red lobster Fishery. A number of recent changes represent government restructuring because of political changes in Mexico.
3.5.2 Fishing Rights
Fishing rights were first exclusively allocated to fishermen's Cooperatives in 1936/1938, by the assigning a group of species (lobster, abalone and others) within a delimited fishing territory for each organization (Vega et al. 1997). A unique scheme of limited entry was originated from this system, which allows better control of effort and fulfilment of basic regulations (Vega et al. 1997; Vega et al. 2000). At present, 26 Cooperatives are authorized for lobster harvesting through concessions lasting 20 years. Each concession includes a clear description of the exclusive fishing zone allotted to each cooperative. This scheme is rigorously controlled by cooperatives and ensures a limitation on fishing effort within concessions as well as prevention of illegal fishing by poachers.
3.5.3 Regulations
The management of the different lobster fisheries exploited in Mexican waters is regulated by decree in the Mexican Official Norm (NORM-006-PESC-1993). This encompasses the management regulations for the species in the Mexican Caribbean and Gulf of Mexico as well as those in the Baja California Peninsula and the Gulf of California.
Regulations result from a coordinated effort by all stakeholders to discuss issues and concerns at the state level. Local CRIPs pass along comments to the INP headquarters, which in turn puts forth final recommendations to CONAPESCA.
Fishing regulations remained basically unchanged between 1960 and 1990. Since then, regulations have undergone a number of modifications. However, the main
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regulations still include a closed season, a minimum legal size (MLS), and a prohibition on the catching of egg-bearing females. In addition, there are restrictions on fishing gear and concession of fishing rights in specific areas or zones.
Until 1993, the regulations for fishing closures for P. interuptus were the same throughout the western coast of the Baja California Peninsula. Now, established latitudinal variations in the reproductive cycle of P. interuptus along the Baja California coast allows the fishery to be managed through stepped closures in four zones (Fig. 1(b), Table 1). The MLS of P. interuptus, is set at 82.5 mm carapace length (CL) throughout the fishery.
3.5.4 Catch and CPUE trends.
In the 1970s and 1980s, total catches of P interuptus from the Pacific coast fluctuated around 1300 t, except for the period 1980-1982, when a peak in catches occurred.
Catches of individual cooperatives vary considerably (data are available but not illustrated here). However, the catches also vary with lobster availability and oceanographic conditions. Catches during the 2000/2001 season, in most cooperatives, were at the highest level ever recorded.
Catches by commercial fishers in Mexico and the USA have been monitored for long periods and usable data on catches and the number of traps are available since 1928 for Mexico, and 1916 for the USA. Catches over the last 14 years are shown in Table 2.
Table 2 Catches of Panulirus interuptus (tonnes) in Baja California, Mexico and the USA from 1988 to 2001 Year Baja Mexico USA Total 1988 1116 303 1419 1989 1204 332 1536 1990 1395 331 1726 1991 1143 268 1411 1992 1044 263 1307 1993 971 233 1205 1994 1203 238 1441 1995 1396 265 1661 1996 1519 323 1843 1997 1447 423 1879 1998 1351 312 1663 1999 1404 231 1634 2000 1828 320 2148 2001 1653 325 1978
In Baja California, 26 fishing cooperatives exploit the lobster resource (the three southern most cooperatives only catch P. inlfatus and P. gracilis), the rest catch
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mostly P. interuptus. Of the cooperatives that catch P. interuptus, 10 operating on the central region of the Peninsula, from Punta Abreojos to Isla Cedros, produce around 80% of the total catch. In this region, newly recruited lobsters (82.5-90.0 mm CL) represent around 70-75% of the catch.
Fishermen follow the inshore-offshore lobster movements with their traps. Catch is highest during the first 2 months after the fishing season opens and declines over the rest of the season, particularly in the most productive zones. CPUE may fluctuate between 0.37 and 0.55 kg per trap per night (Vega et al., 1996). Females are usually more abundant in the catch.
Phillips et al. (1994) showed that changes in the catches of P. interuptus in Baja California over a long period tended to be higher four years after ENSO episodes that cause high sea levels and a strong poleward flow. Vega & Lluch (1992) found evidence of a relationship between sea surface temperature and lobster catch.
Incorporating the thermal anomalies of surface waters along the central region of Baja California into a yield model, Vega et al (2000) suggested that the stock of P. interuptus is still above the optimum level, i.e., the biomass is above the level of maximum catches. However, after incorporating the uncertainty in the processes of evaluation and management, they suggest that an increase of 20% above the current mean catch could produce a decline in the biomass below the maximum exceeding yield, and therefore advised against a catch of over 1239 t per year for this region. This analysis (stock assessment) was based upon fitting a dynamic biomass model (Hilborn and Walters, 1992).
3.6 Key Environmental Features
3.6.1 Habitat
Part of the red lobster fishery is in the Vizcaino Biosphere Reserve which covers 73,677 km2. Because of its special status, the terrestrial area has already been the subject of a number of studies of its environment and biota, and a great many more are underway. However, few studies directed studies of the marine areas in the biosphere reserve where the fishery operates have yet been undertaken. We were advised that such studies are planned, and these do include the development of fishery management plans coincident with the biosphere reserve.
3.6.2 Bycatch
The main bycatch in lobster traps are fin fishes (kelp bass, sheephead, white fish, rock fishes, giant sea bass), morays eels and some small sharks (horn shark, leopard sharks). Bycatch, in much small numbers, can also include Abalone (Haliotis sp.), Pismo clam, algae (Gelidium sp.), Top shell (Astraea undosa), Crabs (Cancer spp.), Octopus, Sea Cucumber (Parastichopus sp.), with the invertebrate species only taken very sporadically. Gelidium sp. is probably only found as floating debris dislodged by other causes such as winter storms. It is also worth noting that many of the bycatch species found in lobster traps are predators of lobster, which enter the trap to kill lobster, and therefore negatively affect the fishermen.
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3.6.3 Ghost Fishing
Approximately 20% of the traps are replaced each year. The proportion of these that are lost at sea is unknown. Studies in other lobster fisheries have shown that lobsters can easily leave, and will preferentially leave traps if bait is not present. Based on this knowledge, it is anticipated that ghost fishing is probably minimal in this fishery.
4. Other fisheries in vicinity not subject to certification.
Abalone (Haliotis sp.), caracol (conch shells), algae (Gelidium sp.), sharks and finfish (approximately 21 species) are taken in the area of the lobster fishery by the members of the Cooperatives. These activities do not typically effect or interact with lobster fishing operations as the cooperatives use separate boats, fishers and gear for these activities.
5. MSC Evaluation Process
5.1 MSC Standards for Sustainable Fisheries Management
PRINCIPLE 1
A fishery must be conducted in a manner that does not lead to over-fishing or depletion of the exploited populations and, for those populations that are depleted, the fishery must be conducted in a manner that demonstrably leads to their recovery. 1
Intent: The intent of this principle is to ensure that the productive capacities of resources are maintained at high levels and are not sacrificed in favour of short term interests. Thus, exploited populations would be maintained at high levels of abundance designed to retain their productivity, provide margins of safety for error and uncertainty, and restore and retain their capacities for yields over the long term.
Criteria:
1. The fishery shall be conducted at catch levels that continually maintain the high productivity of the target population(s) and associated ecological community relative to its potential productivity.
2. Where the exploited populations are depleted, the fishery will be executed such that recovery and rebuilding is allowed to occur to a specified level consistent with the precautionary approach and the ability of the populations to produce long-term potential yields within a specified time frame.
1 The sequence in which the Principles and Criteria appear does not represent a ranking of their significance, but is rather intended to provide a logical guide to certifiers when assessing a fishery. The criteria by which the MSC Principles will be implemented will be reviewed and revised as appropriate in light of relevant new information, technologies and additional consultations
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3. Fishing is conducted in a manner that does not alter the age or genetic structure or sex composition to a degree that impairs reproductive capacity.
PRINCIPLE 2
Fishing operations should allow for the maintenance of the structure, productivity, function and diversity of the ecosystem (including habitat and associated dependent and ecologically related species) on which the fishery depends.
Intent: The intent of this principle is to encourage the management of fisheries from an ecosystem perspective under a system designed to assess and restrain the impacts of the fishery on the ecosystem.
Criteria:
1. The fishery is conducted in a way that maintains natural functional relationships among species and should not lead to trophic cascades or ecosystem state changes.
2. The fishery is conducted in a manner that does not threaten biological diversity at the genetic, species or population levels and avoids or minimises mortality of, or injuries to endangered, threatened or protected species.
3. Where exploited populations are depleted, the fishery will be executed such that recovery and rebuilding is allowed to occur to a specified level within specified time frames, consistent with the precautionary approach and considering the ability of the population to produce long-term potential yields.
PRINCIPLE 3
The fishery is subject to an effective management system that respects local, national and international laws and standards and incorporates institutional and operational frameworks that require use of the resource to be responsible and sustainable.
Intent:
The intent of this principle is to ensure that there is an institutional and operational framework for implementing Principles 1 and 2, appropriate to the size and scale of the fishery.
A. Management System Criteria:
1. The fishery shall not be conducted under a controversial unilateral exemption to an international agreement.
The management system shall:
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2. Demonstrate clear long-term objectives consistent with MSC Principles and Criteria and contain a consultative process that is transparent and involves all interested and affected parties so as to consider all relevant information, including local knowledge. The impact of fishery management decisions on all those who depend on the fishery for their livelihoods, including, but not confined to subsistence, artisinal, and fishing-dependent communities shall be addressed as part of this process;
3. be appropriate to the cultural context, scale and intensity of the fishery – reflecting specific objectives, incorporating operational criteria, containing procedures for implementation and a process for monitoring and evaluating performance and acting on findings;
4. observe the legal and customary rights and long term interests of people dependent on fishing for food and livelihood, in a manner consistent with ecological sustainability;
5. incorporates an appropriate mechanism for the resolution of disputes arising within the system2;
6. provide economic and social incentives that contribute to sustainable fishing and shall not operate with subsidies that contribute to unsustainable fishing;
7. act in a timely and adaptive fashion on the basis of the best available information using a precautionary approach particularly when dealing with scientific uncertainty;
8. incorporate a research plan – appropriate to the scale and intensity of the fishery – that addresses the information needs of management and provides for the dissemination of research results to all interested parties in a timely fashion;
9. require that assessments of the biological status of the resource and impacts of the fishery have been and are periodically conducted;
10. specify measures and strategies that demonstrably control the degree of exploitation of the resource, including, but not limited to:
a) setting catch levels that will maintain the target population and ecological community’s high productivity relative to its potential productivity, and account for the non-target species (or size, age, sex) captured and landed in association with, or as a consequence of, fishing for target species; b) identifying appropriate fishing methods that minimise adverse impacts on habitat, especially in critical or sensitive zones such as spawning and nursery areas;
2 Outstanding disputes of substantial magnitude involving a significant number of interests will normally disqualify a fishery from certification.
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c) providing for the recovery and rebuilding of depleted fish populations to specified levels within specified time frames; d) mechanisms in place to limit or close fisheries when designated catch limits are reached; e) establishing no-take zones where appropriate;
11. contains appropriate procedures for effective compliance, monitoring, control, surveillance and enforcement which ensure that established limits to exploitation are not exceeded and specifies corrective actions to be taken in the event that they are.
B. Operational Criteria
Fishing operation shall:
12. make use of fishing gear and practices designed to avoid the capture of non- target species (and non-target size, age, and/or sex of the target species); minimise mortality of this catch where it cannot be avoided, and reduce discards of what cannot be released alive;
13. implement appropriate fishing methods designed to minimise adverse impacts on habitat, especially in critical or sensitive zones such as spawning and nursery areas;
14. not use destructive fishing practices such as fishing with poisons or explosives;
15. minimise operational waste such as lost fishing gear, oil spills, on-board spoilage of catch, etc.;
16. be conducted in compliance with the fishery management system and all legal and administrative requirements; and
17. assist and co-operate with management authorities in the collection of catch, discard, and other information of importance to effective management of the resources and the fishery.
5.2 MSC Required Evaluation and Certification Methods
Along with developing a standard for sustainable fisheries management, the MSC also developed a certification methodology that provides the process by which all fisheries are to be evaluated. The MSC accredits certification bodies (businesses) that can show that the expertise and experience necessary to carry out MSC evaluation is present in the organization. In addition, each certification body must demonstrate its fluency with the MSC standards and evaluation methods through the use of these in a fishery evaluation
The methods are provided in great detail through documents that can be downloaded from the MSC website (www.msc.org). At present, the Fisheries Certification
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Methodology is in its 3rd version and under review for additional changes in order to keep pace with lessons learned during previous certifications.
5.3 Evaluation Team
The first step in the full evaluation process is the formation of an evaluation team. According to MSC requirements, the team must consist of a minimum of 2 people with significant expertise in the three disciplines that cover the MSC standards: the status of stocks, the ecosystem impacts from fishing, and fisheries management.
Just as important in selecting a team is that the members of the team meet the expectations of the wider stakeholder group in the fishery under evaluation. To ensure that all team members were satisfactory with the wider stakeholder audience, SCS requested nominations from a number of stakeholders in the fishery (conservation groups, fishing organizations, government agencies). Luis Bourillon of CoBi (Communidad y Biodiversidad, based in Guaymas, Mexico) facilitated discussions with a number of fishing and conservation organizations. The names of nominated scientists were compiled and comments sought as to the acceptability of each nominee. In making a selection between the various nominees, SCS not only used comments received from stakeholders, but added two additional criteria of its own. SCS based its first additional criterion on internal company information showing previous experience in certification processes significantly improves the fishery evaluation process. So, the first additional criterion was that at least one scientist selected for the evaluation team must have previous experience in the MSC evaluation and certification process. SCS based its second additional criterion on the recognition that it is important that a fishery evaluation team be sensitive to both language and cultural differences in order to properly conduct an evaluation. The fact that the fishery is in a country where both language and culture are different from those of SCS's fishery evaluation manager led to the additional criterion that at least one member of the evaluation team should be from the country of origin for the fishery to ensure language capabilities and an understanding of the cultural and social framework for resource management in the country.
One further complication in developing a final team to assess the Baja California Red Lobster Fishery was the fact that the evaluation process was started and then interrupted, and there was year long hiatus before reactivating the assessment in Baja California, Mexico. This resulted in some scientists becoming unavailable due to scheduling conflicts, and leaving on 2 scientists still available to participate. As a result, SCS went through the same process again, albeit shorter, to select another scientist.
After receiving comments, SCS selected scientists that met the MSC requirements and satisfied SCS's need to ensure they would be acceptable to the wider stakeholder group in the fishery.
Originally, the team that was selected included 4 scientists, as the original project included an evaluation of two lobster fisheries; one in Banco Chinchorro, Mexico and one in Baja California, Mexico. Dr. Phillips was selected as an expert in lobster biology and lobster management covering the requirements of MSC Principle 3. For Principle 1, Dr. Enrique Lozano was chosen to evaluate both fisheries. Dr. Daniel
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Lluch was chosen to cover Principle 2 for the Baja California fishery, while Dr. Eric Jordan Was selected as Dr. Lluch's counterpart for the Banco Chinchorro lobster fishery.
During the initial phases of the project, complications arose that made it necessary to put the project on hold. After a number of months of discussions, resolutions were found so the project could be reactivated. However, by the time this happened, the clients decided that only the Baja California lobster fishery evaluation would proceed.
As a result, the evaluation team was modified in two ways. The scientist hired for evaluating Principle 2 (ecosystem effects) concerns for Banco Chinchorro was no longer needed and left the project. Also, the timing was such that Dr. Lozano was no longer available to examine Principle 1 (status of stocks) issues, so SCS needed to find a replacement. After considering an additional number of qualified scientists, SCS selected Dr. Arturo Muhlia to replace Dr. Lozano as the team's expert in stock assessments.
The scientists selected as evaluation team members met all of the selection criteria listed above. Each scientist received favorable comments from a wide number of stakeholders, one (Bruce Phillips) had previous MSC experience, and two were from the fishery's country of origin. The team members' backgrounds are shown in brief below (see Appendix 3 for Curriculum Vitae's for the scientists contracted by SCS to conduct the evaluation).
Fishery Project Manager: Dr. Chet Chaffee, SCS (USA)
Dr. Chaffee is currently Vice President of Environmental Programs at Scientific Certification Systems, Inc. of Oakland, California, USA. Dr. Chaffee has worked with scientists in 7 countries to complete more than 20 MSC pre-assessments on small and large fisheries and has worked on 11 full fishery evaluation projects that encompass more than 25 fisheries. Dr. Chaffee has assisted the MSC on the development of its certification methods, is a co-editor of the first book on fishery certification (Phillips, B., T. Ward, and C. Chaffee, 2003), and has conducted or managed more than 25 projects evaluating MSC Chain of Custody certifications for processors in 9 countries.
Assessor: Dr. Bruce Phillips (Australia) Principle 3
Dr. Phillips has more than 30 years experience in fisheries research and management from both a practical standpoint having worked at CSIRO (Chief Scientist Australian Fisheries Management Authority) and academically as a Professor at Curtin University of Technology. Dr. Phillips is internationally recognized as one of the leading authorities on lobster biology and lobster fishery management having worked as a consultant and research scientists to lobster fisheries in Australia, New Zealand, Brazil, Mexico, Cuba, and several Asian fisheries. Dr. Phillips was the lead scientists in the evaluation and certification of Western Australia Rock Lobster in March 2000, conducted the pre-assessment for the Baja California lobster fishery, and has participated in MSC pre-assessments on 4 other lobster fisheries. Dr. Phillips has also provided technical expertise to the MSC on certification methods (MSC Workshop, 2000).More recently, Dr. Phillips has been working as the editor for a compendium of
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papers on red lobster fisheries and their management around the world, and is co- editor of the first book on fisheries certification ( Phillips, B., T. Ward, and C. Chaffee, 2003).
Assessor: Dr. Daniel Lluch Belda (Mexico) Principle 2
Dr. Lluch is an internationally recognized fisheries scientist with more than 25 years experience in fisheries research and management. Dr. Lluch is a member of the Mexican Academy of Sciences; a professor at Instituto Politécnico Nacional, Centro Interdisciplinario de Ciencias Marinas, La Paz, Mexico; and Regional coordinator of the PCAC-LME project. COI/IOCARIBE. Dr. Lluch has participated in and chaired a number of international scientific committees examining fisheries, oceanographic dynamics, and environmental effects in marine systems.
Assessor: Dr. Arturo Muhlia-Melo (Mexico) Principle 1.
Dr. Muhlia-Melo is a respected fishery scientist with more than 25 years experience in fisheries management and quantitative assessments of fish stocks. Dr. Muhlia-Melo is currently member of the National Researchers System of Mexico professor and was the Chief Scientist of the Fisheries Research Program at Centro de Investigaciones Biologicas del Noroeste in La Paz, Baja California Sur, Mexico.
5.4 Baja California Red Lobster Evaluation Process
The evaluation process for all MSC fisheries assessments is comprised of a two step process; the completion of a pre-assessment and a full assessment.
The pre-assessment report is confidential as it contains information beyond the aspects of the fishery itself including, but not limited to financial information regarding certification costs. The pre-assessment was completed in March 2001 by Chet Chaffee and Bruce Phillips. A number of people were interviewed during this process, and the information obtained used in both the pre-assessment and full assessment.
The people interviewed during pre-assessment included:
Date of Discussion/Interview Location Organization 30 September 2000 Ensenada Mexico Rafael Muñoz G. President Soc. Coop. de Prod. Pesq. Nac. de Abulon Celina Domínguez Comercialización Soc. Coop. de Prod. Pesq. Nac. de Abulon José Jesús Espinoza M. President Sociedad Cooperativa Progreso Martín Romero L. Auxiliar Pesquerías Sociedad Cooperativa Leyes de Reforma Martín Ortiz Quintanilla Asesor Técnico Soc. Coop. De Prod. Pesq. "La Purísima", S.C. De R.L. J. Ignacio Patrón Peralta Auxiliar Contable Soc. Coop. De Prod. Pesq. "La Purísima", S.C. De R.L. Aarón Esliman S. Coordinador de Reserva de la Biosfera el Pesquerías Vizcaino/CONANP Armando Castro V. Vocal Financiero Pescadores Nacionales de Abulon Daniel Gerardo Romero Arce Investigador Pescadores Nacionales de Abulon Mario Ramade Pesquerías Federación de Baja California Julio S. Palleiro Subdelegado de Pesca SEMARNAP, Baja California
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Jorge Jiménez López Delegado PROFEPA, Baja California Sur Armando Vega Velazquez Coord. Programa CRIP, La Paz Langosta José Jesús Camacho Secretario de Federación de Cooperativas de Baja Administración California Ocean. Rafael Cárdenas B. Asesor Técnico Cooperativa Punta Abreojos M. en C. Luis Bourillon M. Director Ejecutivo Comunidad y Biodiversidad, A.C. Andrea Saenz Associate Researcher Comunidad y Biodiversidad, A.C.
8 March 2001 Ensenada Mexico Jesus Espinosa President S.C.P.P Progresso Eduardo Murillo Treasurer S.C.P.P. Progresso Amy Hudson Weaver Researcher Comunidad y Biodiversidad, A.C Mario Ramade Pesquerías Federación de Baja California Pablo Arce President S.C.P.P Punta Abreojos Antonio Zuniga Treasurer S.C.P.P. Punta Abreojos
9 March 2001 Ensenada Mexico Edgar Aquila President S.C.P.P. Buzos y Pescadores Rafael Munoz Gallardo President S.C.P.P. Nacionales de Abulon Alfredo Cota Assistant Director CRIP- Ensenada Julian Castro Researcher CRIP - Ensenada
9/11 March 2001 Ensenada Mexico Armando Vega Velazquez Research Scientist CRIP – La Paz Jaime Gonzalez Cano Research Scientist CRIP – Puerto Morelos
12 March 2001 San Diego USA Robert B. Read Associate Marine California, Department of Fish and Game Biologist
As a result of the change in project (see above), some of the initial steps describe below have two parts to them; the first part associated with the larger project, and the second part associated with only the Baja California lobster evaluation.
The full assessment process is an open and transparent examination of the fishery against the MSC standard and includes a number of steps, which are discussed in detail in the following paragraphs.
5.4.1 Drafting of Performance Indicators and Scoring Guidelines
The original assessment team of 4 scientists and Chet Chaffee met in Cancun, Mexico 2-4 November 2001 to begin the process of drafting a set of performance indicators for the assessment of the Banco Chinchorro and Baja California lobster fisheries. The assessment team was provided with the performance indicators that had been used in the Western Australia lobster fishery assessment, as well as those from the Alaska salmon project, the Bering Sea pollock project, and the Patagonia Toothfish assessment. The project was temporarily halted on 9 November 2001, so a draft set of performance indicators was not completed. The revised assessment team (Chet Chaffee, Bruce Phillips, Daniel Lluch, and Arturo Muhlia) reconvened in La Paz, Baja California, Mexico on 4 November 2002 to complete the process. Prior to meetings with fishers, managers, scientists, and stakeholders the assessment team completed a rough draft of the performance indicators for the assessment. The
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assessment team then completed its set of interviews in Baja California, exchanging information on the fishery as well as taking comments on the rough draft of the performance indicators and scoring guides. The team then revised the rough draft, posted the set of performance indicators on the MSC website for public comment in the beginning of January 2003, and sent them by email to a number of stakeholders as identified in the pre-assessment and subsequent discussions with CoBi, WWF, and the MSC. The only substantive comments were received from the MSC at the end of January 2003.
5.4.3 Review of client submitted data addressing the performance indicators
Mario Ramade (Federation de Sociedades Cooperativas de la Industria Pesquera) working with Luis Bourillon (CoBi) managed the process of compiling the reports, scientific papers, and data sets from the fishery managers, fishery scientists, and fishers needed to show how the Baja California red lobster fishery complies with the performance indicators developed by the assessment team. A majority of the papers were available prior to meetings and consultations with fishery managers, fishery scientists, fishers, and stakeholders. Additional papers were identified and obtained as a result of the meetings.
5.4.4 Meetings and Consultations
Meetings were held in La Paz (Baja California Sur, Mexico) and Ensenada (Baja California, Mexico) on two different occasions. To give the wider stakeholder audience a chance to get fully acquainted with the full assessment process, SCS asked Luis Bourillon (CoBi) to set up a series of meetings in August 2002 where two members of the assessment team, Chet Chaffee and Bruce Phillips, could present the assessment process and answer questions. This was planned to allow the wider audience in Mexico to fully understand the assessment process in preparation for technical meetings later in the year (November 2002). In addition, it provided a forum to ask questions of stakeholders and in so doing solicit additional information about the fishery. Table 3 below provides a list of the people invited to the general meetings in August 2002. In addition, announcements were made through World Wildlife Fund and by email from the certification body to ensure that any parties interested in communicating with the evaluation team had ample opportunity.
The second set of meetings associated with this full assessment occurred from 4 November 2002 - 12 November 2002 where the entire assessment team met with fishery scientists and managers, academicians, fishers, and other stakeholders. Potential participants for these meetings were again contacted through emails, phone calls and word of mouth using World Wildlife Fund and Luis Bourillon (CoBi). Since stakeholders were already identified in previous activities, the original list of interested parties was used to solicit interested parties for these additional meetings. A schedule of the meetings in November 2002 is shown in Table 4 below.
In addition to the larger sets of meetings in Mexico, SCS contacted California Department of Fish and Game to see if the California agency had any comments concerning the evaluation of the lobster fishery in Baja California, Mexico. During the pre-assessment Chet Chaffee and Bruce Phillips met with Robert Read, Associate Marine Biologist who provided some background data on regulations and catch in the
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California lobster fishery. At the time of the conversation, he said he had no direct questions or concerns about the Baja lobster fishery, but noted he was not the proper person to contact. Later, Chet Chaffee contacted Kristina Barsky, California Department of Fish and Game Regional Marine Manager. Ms. Barsky provided a few general points where she said there would be some curiosity if not concern that these areas were properly managed. The areas were compliance and enforcement, catch reporting, and illegal fishing. Ms. Barsky noted as well that the department had very little information about how their counterparts in Baja California managed the lobster fishery, so her concerns were of a general nature rather than about issues where the department had specific knowledge of improper or poor management.
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Table 3 People invited to stakeholder meetings in August 2002 for the MSC assessment of the Baja California red lobster fishery.
BAJA CALIFORNIA SUR (21 August 2002)
OTHER COOPERATIVES FISHING AT BAJA CALIFORNIA SUR
SCPP Luis Gomez Z SCPP 19 de Septiembre SCPP San Jose de Gracia (ejidal) SCPP Pescadores de la Poza Puerto Chale SCPP Bahia Magdalena SCPP San Carlos SCPP Gral. Meliton Albanez SCPP Punta Lobos (ejidal) SCPP Todos Santos
STATE GOVERNMENT Leonel Cota Montano Gobernador Constitucional de BCS
Ing. Jose de Jesús Gallo Ramirez– Director de Fomento Pesquero, Secretaría de Desarrollo y Fomento Económico
MC Jesús Druck – Secretario de Desarrollo y Fomento Económico
Congreso del Estado Comision de Ecologia Diputada Siria Verdugo, Presidenta de la Comisión de Ecología del Congreso del Estado de Baja California Sur
Diputado Alvaro Gerardo Higuera, Presidente de la Comisión de Pesca del Congreso del Estado de Baja California Sur
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CRIP-LA PAZ Luis Gerardo López-Lemus – Director Armando Vega – Jefe del Proyecto Langosta
SEMARNAT (Secretaría del Medio Ambiente y Recursos Naturales) PROFEPA Víctor Martínez Escobar – Subdelegado de Profepa en el Estado de BCS
INE – Comisión Nacional de áreas naturales protegidas Biol. Víctor Sánchez – Director de la Reserva de la Biosfera del Vizcaíno
COMISIÓN NACIONAL DE PESCA Dr. Jerónimo Ramos Saenz Pardo
Subdelegado de Pesca en el Estado de BCS Lic. Ninfa Leticia Cordero Sauceda
INSTITUTO NACIONAL DE PESCA Dr. Guillermo Compeán Jimenez Presidente
Miguel Angel Cisneros Director General de Investigacion, Evaluacion y Manejo de Recursos Pesqueros
ACADÉMICOS
CICIMAR Margarita Casas-Valdés Mauricio Ramírez
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CIBNOR Sergio Hernández Germán Ponce
UABCS
NON-GOVERNMENTAL CONSERVATION ORGANIZATIONS (NGOs)
ISLA, A.C. Antonio Cantú
The Nature Conservancy - TNC Marianne Kleinberg
Niparajá, A.C. Arón Esliman
Medio Ambiente y Desarrollo, A.C. Hernán Ramírez
School for Field Studies Centro en Bahía Magdalena
Ocean Garden BCS
CANIPESCA BCS
FEDECOOP Dip. Leobardo Redona Romero
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Representante legal en BCS
BAJA CALIFORNIA (23 August 2002)
FEDECOOP Donaciano Villalba Morales Jesús Camacho Osuna
All affiliated cooperatives
STATE GOVERNMENT Oc. Luis A. Tiznado García Director de Pesca
Oc. Abraham Huerta Maldonado Coordinador de Comercialización y Abasto Pesquero
CRIP-Ensenada Mc. Julian Guardado Director
Oc. Julián Castro / Fidelia Caballero Investigadores Programa Langosta
SEMARNAT PROFEPA Ing. Tobias Contreras Trejo Subdelegado de Profepa en BC
Comision Nacional de Pesca
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Oc. Julio Said Palleiro – Subdelegado de Pesca en el Estado de BCS
CANAIPESCA Ing. Raul Cortez
ACADÉMICOS
UABC Dr. Hector Manzo Monroy - Investigador Dr. Eliseo Almanza Heredia – Investigador Facultad de Ciencias Marinas
CICESE Dr. Luis Calderón
NON-GOVERNMENTAL CONSERVATION ORGANIZATIONS (NGOs)
PROESTEROS Patricia Martínez Laura Martínez
PRONATURA BC Ruben Lara Gustavo Daneman
CADERNAP Javier Villavicencio
WILDCOAST Serge Dedina
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LOBSTER MERCHANTS
Ocean Garden Inc. Ing. César Romero López
Ing. David Nishikawa Nishikawa y Asociados
OTHER COOPERATIVES FISHING IN BAJA CALIFORNIA
SPR Litoral Baja California Ensenada
SCPP Ensenada El Rosario
SCPP Abuloneros y langosteros Isla Guadalupe
SCPP Rafael Ortega Cruz Santa Rosaliita
Permisionarios de pesca de fomento Isla Coronados 6
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Table 4. People interviewed in Baja California, MSC Full Assessment of Red Lobster Fishery La Paz, Baja California, Mexico
4-Nov-02 Francisco Javier Lucero Subdelegado de Pesca Delegación de SAGARPA en BCS
5-Nov-02 Luis Gerardo López Lemus Director INP-CRIP-La Paz
Armando Vega Jefe del proyecto langosta INP-CRIP-La Paz
Carlos Gómez Subdirector, proyecto INP-CRIP-La Paz langosta Eleazar Treviño Técnico INP-CRIP-La Paz
6-Nov-02 Margarita Casas Investigadora CICIMAR Elisa Serviere Investigadora CIBNOR Sergio Hernández Investigador CIBNOR Germán Ponce Investigador CIBNOR Daniel Lluch-Cota Investigador CIBNOR Leobardo Redona Director General Dirección de Fomento Pesquero del Estado de BCS Miguel Zaragoza Verdugo Jefe de Programa Fomento Pesquero
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7-Nov-02 Arón Esliman Director Sociedad de Historia Natural Niparajá, A.C. Marianne Kleiberg Director The Nature Conservancy-Baja California Sur Jorge Urbán Investigador UABCS Sandy Lanham Directora y Pilota Environmental Flying Services Gabriel Zaragoza Técnico Pesquero REBVI
Ensenada, Baja California, Mexico 11-Nov-02 Julián Guardado Director INP-CRIP- Ensenada Julián Castro Investigador proyecto INP-CRIP- langosta Ensenada Fidelia Caballero Investigador proyecto INP-CRIP- langosta Ensenada Alfredo Cota Sub-Director INP-CRIP- Ensenada Patricia Martínez Directora Pro Esteros Gustavo Danemann Director de Conservación Pronatura NW
Manuel Gardea Pronatura NW Esteban Torreblanca Pronatura NW Zachary Rabinor Field Coordinator Wildcoast Chris Figler Film maker Baja Wave
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Document Luz del Carmen Martínez Directora General Dirección de Zapatdeny Fomento Pesquero del Gob. del Estado de BC Victor Guardado France Coord. Industria Pesquera Dirección de Fomento Pesquero del Gob. del Estado de BC
12-Nov-02 Luis Calderón Investigador CICESE Luis Alonso Tiznado Subdelegado de Pesca Delegación de SAGARPA en BC Salvador Jiménez Quesada Coordinador de Inspección y Delegación de Vigilancia SAGARPA en BC Elfego Camacho Villavicencio Presidente FEDECOOP Loreto Villavicencio FEDECOOP Genaro Romero Arce Presidente SCPP California San Ignacio Tomás J. Villavicencio Peralta Presidente SCPP Leyes de Reforma José Jesús Espinoza Márquez Presidente SCPP Progreso Edgar Aguilar Castillo Presidente SCPP Buzos y Pescadores José Alfredo Jiménez SCPP Bahía Tortugas
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Jaime Velasco Santiago Presidente SCPP La Purísima Daniel Romero Arce Técnico cooperativa SCPP Pescadores Nacionales de Abulón Pablo Arce Presidente SCPP Punta Abreojos Mario Ramade Jefe de Departamento FEDECOOP y Pesquerías SCPP Bahía Tortugas Antonio Espinoza Montes Técnico cooperativa SCPP Buzos y pescadores Héctor Romero Olivas Técnico cooperativa SCPP California San Ignacio Martín Ortíz Quintanilla Organización de la SCPP La Producción Purísima Abbreviations: INP Instituto Nacional de Pesca CONAPESCA Comisión Nacional de Acuacultura y Pesca CRIP Centro Regional de Investigación Pesquera CICIMAR Centro Interdisciplinario de Ciencias Marinas SAGARPA Secretaría de Agricultura, Ganadería, Desarrollo Rural, Pesca y Alimentación CIBNOR Centro de Investigaciones Biológicas del Noroeste BCS Baja California Sur BCS Baja California CICESE Centro de Investigación Científica y Educación Superior de Ensenada FEDECOOP Federación Regional de Sociedades Cooperativas de la Industria Pesquera Baja California UABCS Universidad Autónoma de Baja California Sur REBIVI Reserva Especial de la Biósfera del Vizcaino-SEMARNAT SEMARNAT Secretaría del Medio Ambiente y Recursos Naturales
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Throughout the evaluation process, the SCS assessment team made every effort to solicit and gather input from as wide an audience as possible. Few written submission were provided during the evaluation process. Instead, most people or organizations that provided input did so verbally in meetings either directly with the assessment team, or through discussions with Luis Bourillon (CoBi) who was facilitating meetings on behalf of the clients and to assist the SCS assessment team with translation of conversations and written documents.
In general, fishers, fishery managers, government scientists, independent scientists, and conservation groups shared the opinion that the Baja California red lobster fishery was a well-managed fishery, much of which is due to the excellent operations of the fishing cooperatives and the ability of the cooperatives to work cooperatively with state and federal agencies. The team was never provided, either verbally or in writing, with a negative opinion of the fishery. Some stakeholders did suggest that the newly organized fishery management system within the federal government was still in need of changes to effect a more equitable and efficient decision-making process.
5.4.5 Weighting and Scoring Performance Indicators
The certification methodology adopted by the MSC involves the interpretation of the MSC Principles and Criteria into a hierarchy of ‘Performance Indicators’. Indicators represent specific areas of important information. These indicators therefore provide a detailed list of factors necessary to meet the MSC Criteria in the same way as the Criteria provide the factors necessary to meet each Principle.
The MSC methodology for fishery evaluations utilizes a decision support process known as AHP (Analytic Hierarchy Process) to assist the team utilize all the information provided (qualitative and quantitative) to come to a consensus decision regarding the overall performance of the fishery (see MSC Certification Methodology Documents at the MSC website www.msc.org). This allows the expert team of fisheries professionals to identify and prioritise performance indicators according to which ones are most important for the specific fishery under evaluation. AHP also provides a process to weight each performance indicator based on the team's view of its importance within the hierarchy. Once each performance indicator within a Principle is weighted, a separate step is taken where each one is scored on a scale of 1 to 100 indicating how well the fishery performed for that given indicator. The weight of each indicator or criteria is then multiplied by its score to obtain a weighted score. All weighted scores for the performance indicators in a given Principle are then summed to provide a final normalized, weighted measure of performance for the Principle, again on a scale of 0 to 100.
The assignment of numerical performance scores is aided by written "Scoring Guideposts" that describe what constitutes an ideal fishery (score = 100), what constitutes passable performance for an indicator (score =80), and the minimum performance required for an indicator (score = 60). Scores are assigned to indicators based on team members' consensus judgement of how the fishery performs in relation to the scoring guides.
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Compliance must be achieved for each MSC Principle independently. This means a normalized performance score of 80 or greater must be achieved for each of the 3 Principles independently in order for the fishery to qualify for certification.
On a given indicator, the fishery may score less than 80 (unweighted score). Where a fishery fails to achieve an unweighted score of 80 on an individual indicator, it indicates the performance of the fishery is deficient in meeting the MSC requirements. The result of scoring less than 80 (unweighted score) on any specific performance indicator is that the applicants for certification, if the fishery meets all other aspects for certification, will be required to bring the performance for the indicator up to a score of 80 even after certification is awarded. This is to be achieved by the applicant meeting whatever condition(s) the evaluation team believes are necessary, and in a specified time frame that is shorter than the length of the certification awarded. A fishery may not score less than 60 (unweighted score) on any single indicator. If a score of less than 60 is assigned to any indicator, the fishery will fail certification regardless of the weighted, normalized score for the Principle. Such a score also triggers the identification of conditions that must be met by the applicant before the fishery can be certified.
For the Baja California red lobster fishery, the weights and scores were discussed, assigned, and agreed by the three scientists hired by SCS; Dr. Bruce Phillips, Dr. Daniel Lluch, and Dr. Arturo Muhlia. Dr. Chaffee led all weighting and scoring discussions, entered all data into the AHP program, and calculated the final results. However, Dr. Chaffee was not part of the consensus decision for assigning either weights or scores.
6. Evaluation Results
The findings of the evaluation team are described below. SCS asked each of the scientists hired to author the chapters based on their respective expertise:
Dr. Arturo Muhlia MSC Principle 1 Dr. Daniel Lluch MSC Principle 2 Dr. Bruce Phillips MSC Principle 3.
MSC PRINCIPLE 1
A fishery must be conducted in a manner that does not lead to over-fishing or depletion of the exploited population and, for those populations that are depleted; the fishery must be conducted in a manner that demonstrably leads to their recovery.
Intent: The intent of this principle is to ensure that the productive capacities of the resources are maintained at high levels and are not sacrificed in favor of short-term interests. Thus, exploited populations would be maintained at high levels of abundance designed to retain their productivity, provide margins of safety for error and uncertainty, and retain their capacities for yields over the long term.
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MSC Criterion 1: The fishery shall be conducted at catch levels that continually maintain the high productivity of the target population(s) and associated ecological community relative to its potential productivity.
Our Interpretation: We focus on 1) management of target species and 2) management of by-product species (retained commercial species that are not the prime target of the fishery). Other species of “associated ecological community” are dealt with under Principle 2.
SC (Subcriteria) 1.1.1 There is a well-defined and effective strategy for managing exploitation of the target species.
Intent: There is an adaptive and precautionary harvest strategy to manage the target stocks; including rules for limiting effort that are well defined.
Indicator 1.1.1.1 The rules and procedures for limiting effort or catch are well defined.
Score 85
Access to the Baja California lobster fishery has been granted to cooperatives since the 1930s. The main access to the fishery has been a concession reserved by species and geographic area (as different areas will have varying productivities and therefore, regulatory constraints). In 1992, fishing law and cooperative law changed and a new agreement was reached between the federal government of Mexico and the Federation of Regional Cooperatives of the Fishing Industry of Baja California. New concessions lasting 20 years were granted.
The National Fisheries Institute of Mexico (INP) has collected catch records of this fishery, since 1928. The actual assessment method is a dynamic model with a bayesian approach and able to explicitly include uncertainty, climate variability and reference points for a precautionary approach to the fishery (Vega et al. 2000). These are described in a book titled: “Sustainability and responsible fishing in Mexico, assessment and management” and generally referred to as the 'red' book. This document was edited and printed by the INP under the ministry of environment, natural resources and fishing (SEMARNAP) in 1998.
Harvest control rules
Harvest control rules are established by official communications of the Mexican government. Rules have, over the years, changed for this fishery, but it has been managed since about 1927 (Chapa, 1964). There are at least two types of official documents regarding management: 1) a NOM (general management rules, legally binding, difficult to change, and 2) Communication on the DOF (Diario Oficial de la Federación) that set specific management measures, usually lasting one fishing season. These rules were subsequently modified the 1st of September, 1957. Examples of official communications of these control rules are: Changes in length of the closure of the fishing season by zone (DOF 21-08-1989, Diario Oficial de la Federación, 1989), zone I closed season from February 16 to September 15, zone II closed season
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from March 16 to September 30 (DOF 9-09-1992, Diario Oficial de la Federación, 1992) and a NOM establishing regulations to harvest all species of lobster, minimum legal size, mechanisms of closure and fishing seasons applied to concessions and fishing permits (Norm-006-pesc-1993, Diario Oficial de la Federación, 1993).
Since 1995 workshops and series of meetings have taken place every year between all fishermen and INP scientists specializing in this fishery. In these meetings research results and models are examined openly. In recent years as a result of these meetings several control rules were then proposed and submitted to CONAPESCA and if accepted, finally formalized. A minimum legal size by species and restriction of limiting effort by fishing closures have been established on subsequent occasions (DOF 11-04-1995, Diario Oficial de la Federación, 1995, DOF 24-08-1996, Diario Oficial de la Federación, 1996, DOF 1-07-1997, Diario Oficial de la Federación , 1997 and DOF 10-03-1998, Diario Oficial de la Federación, 1998).
The actual control rule of this fishery since 1997 is to maintain the fishery at a level to harvest the maximum surplus production while maintaining the population biomass at values above the Bo/2 biomass estimate (Bo, the estimated virtual population biomass). This is described as option 6 of fishery management options in the book mentioned above (Vega et al, 2000). Methods of assessing this fishery and alternative options for managing are also described in the “red book”. The latest communication related to harvest control rule for this fishery was by way of the National Fishing Chart (NFCH) published on the 28th of August 2000 (Diario Oficial de la Federación , 2000).
Indicator 1.1.1.2 The harvest control rules and procedures include an appropriate response to uncertainty.
Score 90
The chosen alternatives for harvest control of this fishery are also described in the red book (Vega et al. 2000), where it is stated on page 290 that “The biomass of this resource varies as influenced by climatic changes of large magnitudes such as El Niño events. This is evident in changes of sea surface temperature (sst). However, due to the fact that the biomass has been maintained over the Bo/2, the risk of uncertainty is minimized”. Using this approach and taking into account that the fishery is reviewed every year, harvest control rules are in place that allow for uncertainties in both data and climate to maintain biomass at appropriate levels.
Indicator 1.1.1.3 The harvest strategy can be shown to be precautionary.
Score 95
The latest harvest control rule related to fishing effort was established in 1998 by a NOM (DOF10-03-1998, Diario Oficial de la Federación, 1998). Regulations applied to this fishery are based in minimum size by species, limiting access by zone closures, limiting fishing effort and trap design.
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Effort in terms of total number of traps has been decreased by the implementation of seasonal closures by species and zones and by minimum size; however, improvements of fishing gear within and between cooperatives must be considered in the near future in terms of how this might change the fishing effort. For example, over the last 20 years, specific studies on the Central Fishing Zone (CFZ) of this fishery have shown an improvement of catch per unit of effort (CPUE), Ramade et al, 1994 and Espinoza- Castro, 1999.
The Mexican government regulations published by the NFCh in August 2000 established as a management goal to consolidate the sustainability of this fishery by optimizing its regulatory mechanisms. Such mechanisms are: reviewing and adjusting periodically the seasonal scheme by zone and species, constantly monitoring and modifying the restrictions on fishing gear (traps, escape windows, etc.), and increased surveillance to prevent illegal fishing. With these mechanisms, it is expected that the fishery will see an increase in recruitment and production without an increase in fishing effort.
The dynamic management model used to monitor this fishery has reference points to maintain biomass of the stock at levels above Bo/2 or above half of its original condition. This model provides alternative management strategies depending on the state of the stock of the fishery including uncertainty and climate variability (Vega et al. 2000).
Indicator 1.1.1.4 The harvest strategy is properly applied
Score 95
The red lobster fishery of Baja California is a community-based fishery operating with small boats over short distances from port and generally run as a family or small community operation organized in cooperatives. Fishing units operate in shallow waters, with the deepest fishing areas of around 70 m and in a few cases, down to 100-120 m. The general control rule limits the fishing effort by total number of traps, by fishing season and by zone ( DOF31-12-1993, Diario Oficial de la Federación, 1993 and Diario Oficial de la Federación, 2000).
Annual quotas are followed by 95% of all fishermen who apply the harvest strategy established in 1993 based on written statements, fishing permits and strategies established in the NFCh in 2000 (Diario Oficial de la Federación, 2000). The intent is not to increase fishing effort based on the number of boats, number of fisherman and number of traps. All of the fishers in the cooperatives fishing the central zone follow this harvest strategy without exception. This accounts for approximately 80% of the total red lobster biomass from the entire fishery in Baja California. Statistics of catch and fishing effort are carefully recorded daily. Technicians from the FEDECOOP and from the INP collect catch and effort records and construct parallel databases. These statistics are kept up to date and revised annually.
SC 1.1.2 There is adequate knowledge about the target stocks.
Indicator 1.1.2.1 There is adequate knowledge of the identity of the target species.
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Score 95
The target species of this fishery is carefully monitored and recorded in all fishing grounds with no misidentification. The red lobster (Panulirus interuptus) is a temperate-tropical species distributed from San Luis Obispo, California to Isla Margarita, Baja California Sur. Since the red lobster is the most common and dominant species in more than 90% of its geographical distribution, it is easily identified without error in the fishing area. There are two other species of lobsters from the tropical environment (Panulirus inflatus) and (Panulirus gracilis) and both are easily distinguished from P. interuptus. The original description of the red lobster was made by Randal, 1840 and the taxonomic description and geographic distribution of this species was made by Allen, 1916; Lindberg, 1955; Chapa, 1964 and Ayala, 1988.
Indicator 1.1.2.2 There is adequate knowledge of the life history and behavior characteristics of the species
Score 85
The target species has been the subject of many biological studies since the beginning of the fishery. Some of the more comprehensive studies are listed below:
Reference and subject description
Lindberg, R. G. 1955. Reference paper 3, Growth population dynamics and behavior.
M. W. Johnson. 1960 Reference papers 7 and 8. Offshore drift of larvae, production and distribution.
Chapa H. 1964. Reference paper 10. Taxonomy, geographical distribution, reproduction, and development.
Ayala-M. Y. 1976. Reference paper 28. Sex composition, weight-length relationship, and growth curve by sex.
Gracia A. and Kensler, C. B. 1980. Reference paper 34. Distribution, habitat, reproduction and migration.
Pineda-Barrera, J., J.A. Diaz de Leon-C. and F. Uribe-O. 1981. Reference paper 36. Fecundity studies.
Salgado-Castro, L. R. 1982. Reference paper 37. General aspects of distribution, habitat, behavior, abundance and reproduction.
Ayala-M. Y. 1983. Reference paper 38. Maturity and reproductive cycle.
Pringle, J.D. 1986. Reference paper 40. Larval retention and recruitment.
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M. A. Diaz-Arredondo 1989. Reference paper Bachelor thesis 1. Feeding habits and nutritional conditions.
A. Vega-Velázquez 1992. Reference paper 54. Migration and Growth.
S.A. Guzmán del Proo and J. Pineda-Barrera 1985. Reference 56. Population dynamics
Indicator 1.1.2.3 There is information to measure trends in abundance of stocks.
Score 85
Recent results of population genetics studies of the red lobster (Perez et al. 2000) although inconclusive suggest three genetically distinct subpopulations may be occurring along the Baja California peninsula: The northern, central and southern regions. However, this fishery is still currently managed as a single stock.
There are four major areas of production along the geographical distribution of the red lobster fishery of Baja California, all belonging to one stock. Based on the average from recent years, it is estimated that the “Southern California area” from San Luis Obispo, California to the US-Mexico boarder contributes approximately 17% of the total production. The “Northern Baja California area”, from south of the US-Mexico border to Laguna Manuela, Baja California, contributes 5-7% of the catch. The “Central Baja California area” located from Cedros Island to South of Punta Abreojos, Baja California Sur, contributes approximately 67% of total production and the “Southern Baja California area” located from San Ignacio Lagoon to Todos Santos, Baja California Sur, contributes approximately 12% of the total production. Within the Baja California fishery, the main component is the Central Baja California area contributing almost 80% of the total Baja California catch.
Historical trends in CPUE
Information on catch and CPUE (catch per unit effort) of this fishery has been gathered since the early 1930s. Long-term trends of CPUE have been analyzed periodically in order to measure trends in abundance of the stock. Information of the three areas of Baja California fishery have been integrated and analyzed together for managing purposes. This is described in the “red book” (Vega et al. 2000) and the National Fishing Chart ( Diario Oficial de la Federación, 2000). However, more work on CPUE is still needed.
Historical development in catch records
Three main trends have been observed in this fishery. The first from the early 1930s to the mid 1940s called “The development phase of the fishery”. Catches ranged from 300 metric tons (mt) to a maximum of 500 mt. The second stage of this fishery was from the mid 1940s to the mid 1960s. This stage is considered the “growth and expansion” phase, with catches ranging from 1000 mt to a maximum of 1300 mt. The third stage of this fishery was from the mid 1960s to the late 1990s and is considered “the stabilization phase of the fishery” with catches ranging from 1300 mt to a
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Indicator 1.1.2.4 There is adequate knowledge of environmental influences on stock dynamics to manage the fishery
Score 85
Management schemes of this fishery have considered environmental impacts on the target species and stocks. This is declared in the National Fishing Chart published in 2000 (Diario Oficial de la Federación , 2000).
Several studies have been developed in order to understand environmental influences on the status of the red lobster fishery of Baja California. The most dominant hypothesis is that large warming events cause a negative influence on the resource with large cooling events resulting in a positive influence on the abundance of the stocks. Some of these studies are Vega A. and Lluch-Cota, 1992, Vega et. al 1996 and Vega et al. 2000.
Several periods of trends related to environmental variability are as follows:
From 1941 to 1954, a cold period of environmental conditions prevailed and the response of the resource was an increase in abundance-production;
From 1954 to 1960, a warm period of environmental conditions and a decrease in abundance-production was observed;
From 1960 to 1973, a cold period of environmental conditions was observed resulting in an increase in abundance-production;
From 1973 to 1985, a warm period of environmental conditions dominated and a decrease in abundance-production was observed, with exception of the period from 1980 to 1982;
From 1985 to 1990 a cold period of environmental conditions resulted in an increase in abundance-production;
From 1990 to 1994, a warm period of environmental conditions resulted in a decrease in abundance-production;
From 1994 to 1997 a cold period of environmental conditions prevailed and as a response, the resource showed an increase in abundance-production;
For the most recent period from 1997 to 2000 it seems that a warming period took place and a trend of decrease in abundance observed, with exception of the 1999 La Niña event which likely caused an increase in abundance due to the cooler waters.
SC 1.1.3 There is adequate knowledge about the fishery.
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Indicator 1.1.3.1 All major sources of fishing mortality including illegal fishing on the stocks are measured or estimated.
Score 80
Over the history of this fishery, statistics of catch and effort have been recorded from different sources. From 1918 to 1948 catch data was recorded as exported production to California; this information was compiled in Wilson, 1948. From 1955 to 1962 catch and effort of this fishery were compiled by Chapa (1964) at the INP. From 1959 to 1973 statistics were compiled by Guzman del Proo (1985) at the INP. Catch data from 1957 till present have been compiled at the Fisheries ministries SEMARNAP and SAGARPA ((Ministry of Agriculture, Livestocks, Rural Development, Fisheries and Food). Catch and effort statistics are recorded by technicians from the INP and FEDECOOP and integrated by the fishing offices located along the Baja California peninsula. This information is transcribed to fishing delegations located in each state.
As it is described in indicator 1.1.2.3 of this principle, catch data of the Baja California red lobster are regularly recorded and integrated for managing purposes. Fishing mortality has been measured along the historical development of this fishery. In the Central zone 100% of fishing mortality is recorded, and in the North and South regions more than 80%.
Illegal fishing
Illegal fishing is almost nonexistent in the important Central Zone. This is mainly due to the enforcement system developed by the fishing community in agreement with the authority of SAGARPA. The FEDECOOP has implemented their own enforcement and surveillance program and poachers from outside of the concession areas are apprehended and turned over to the authorities.
Based on indirect data the FEDECOOP roughly estimated that 15% of past catches in the north and south regions were illegal. This information was presented as justification of a surveillance program of the FEDECOOP affiliation in year 2001(FEDECOOP, 2001).
Fishing in California
Although the fishing regulations and enforcement in California (USA) are not under the management of the Mexican government, Armando Vega (CRIP, La Paz) has collected information on catches from California Department of Fish and Game to account for the additional exploitation on the stock of lobster being fished in Baja California, Mexico. While these added sources of mortality have not yet been officially incorporated into the government stock assessment, Vega (unpublished report to World Wildlife Fund, 2002 conducted as a result of findings from the MSC pre-assessment) analyzed the status of the lobster stock incorporating the catches from California. Vega found that after incorporating the added mortalities, the stocks were still at levels consistent with the management objectives of the Mexican government.
Indicator 1.1.3.2 The size structure of catches and sex ratio are measured.
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Score 85
From 1989 to present a systematic commercial sampling was conducted by the INP- CRIP La Paz Center in Baja California Sur and in Ensenada, Baja California. The INP has established 11 sampling sites within fishing grounds along the west coast of the Baja California peninsula. A sampling program for each year is established by the INP-CRP-POA (Annual activities program). This document can be obtained upon written request from the INP.
Size, sex and fecundity records
Samples of commercial catches are made at the unloading areas of fishing cooperatives and size, sex and fecundity of the lobsters are recorded. Biological sampling for population structure is also part of the monitoring system for this fishery. Every lobster within a trap from fishing units is recorded (size, sex and fecundity index).
Example
Using biological and commercial sampling a study of size structure of catches in Bahia Asunción, Baja California was developed from 1989 to 1995 (Espinosa-Castro, 1999). Bahia Asunción is one of the must important fishing grounds of the Central zone of Baja California lobster fishery. Size measurements (cephalothoraxes length cl) varied from 43 to 112mm in biological samples, annual average size (cl) varied from 74.1 to 77.8 mm, and general average size from the six-year data set was 75.3mm. Commercial samples showed size ranging from 82 to 114 mm (cl), annual average size (cl) varied from 86.1 to 88.4mm and a general average of six-year data was 86.8mm. These type of results are commonly obtained from this fishery.
Similarly information of sex, sex ratio and fecundity are gathered in commercial and biological samples of the fishery. Studies in these fields have been made at different phases of the fishery, Chapa, 1964; Ayala-M, 1976; Gracia and Kensler, 1980; Pineda et al, 1981; Salgado-Castro, 1982; Ayala-M, 1983 and Vega et al, 1994. Note that between 1983 and 1994 unpublished studies and workshops were conducted but reported internally at the INP.
Indicator 1.1.3.3 Fishing methods and patterns are well understood
Score 90
Each commercial fishing unit has a small size boat with an engine (6-7m, 40-65 HP), a variable number of traps and two or three fishers. The number of commercial traps per unit varies from 40 to 60. They have specific buoy colors to identify location of their traps. Harvested lobsters that meet the minimum legal size are retained, while lobster below the legal minimum size are released. Bycatch species are also recorded and discharged to the sea. Traps are cleaned and new bait is set. When they finish harvesting, catch is unloaded in cages prepared to keep lobsters alive. During fishing season, depending on the amount harvested, every two or three days catch is collected
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from cages and transported to the processing plant. After three months this routine is repeated every third day. By the end of the fishing season this routine is repeated every week. Due to the fact that fishing access is provided only by fishing concessions, specific allocation is assigned to each cooperative. Seasonality is well established in concessions and by official communications. Changes in regulations are also announced by the official daily publications. Some of the changes mentioned above are described in indicator 1.1.1.1 of MSC Principle 1.
Spatial and temporal patterns of this fishery are well recorded over 90% of the fishing grounds. Information of these patterns is described in internal reports of the INP.
MSC Criterion 2: Where the exploited populations are depleted, the fishery will be executed such that recovery and rebuilding is allowed to occur to a specified level consistent with the precautionary approach and the ability of the populations to produce long-term potential yields within a specified time frame.
Our Interpretation: We wish to assess if there is a management strategy designed to keep stocks from becoming depleted, and to promote recovery if they become depleted.
Indicator 1.2.1 There are mechanisms to identify when a fishery is becoming depleted and to promote a strategy for recovery of stocks within reasonable time frames.
Score 90
Since the early 1990's, a well-defined assessment method has been used to identify depleted stocks in the Baja California lobster fishery. In the absence of an increase in fishing effort, the lobster fishery is considered healthy and an increase in recruitment and production is predicted. However, environmental changes analyzed since 1941 (see indicators 1.1.2.3 and 1.1.2.4 of Principle 1) have been the most important factor historically in impacting the stocks of this fishery. As an example, during the warming phase from 1973 to 1985, the estimated biomass reached its lowest value in 1985, just above the limit established by the assessment method. The dynamic model sets reference points to avoid depletion and to promote biomass increase, this is described in the “red book” Vega et al. 2000, pages 280 to 286 and the National Fishing Chart ( Diario Oficial de la Federación, 2000). The actual mechanism to curtail a declining stock situation is through periodic review and adjustment of fishing effort. This is done by season, zone and species and most directly through the monitoring and modification of restrictions on fishing gear.
MSC Criterion 3: Fishing is conducted in a manner that does not alter the age or genetic structure or sex composition to a degree that impairs reproductive capacity.
Indicator 1.3.1 To maintain the reproductive capacity of the target species, the level of spawning biomass of the stock is assessed to ensure that it remains above threshold levels.
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Score 85
The INP-CRIP La Paz has developed a systematic monthly sampling of the spawning stages of the Baja California red lobster carried out in 11 locations along the Baja California peninsula since 1989. Annual analysis of the data provided by this system allowed scientist to estimate latitudinal variability and spawning recruitment parameters. This information also allowed the assessment of the spawning stock by zone and species.
The first control rule to manage the spawning stock of this fishery was established in August 1989 by the daily official communication of the Mexican government. This control rule was modified in 1992-1993 and changed to a “Flexible time and zone closure system” also by the daily official communication of the Mexican government. This mechanism assures the viability of the spawning stock by having a continuous monitoring program, and adjustments can be made every year as necessary. Several reports and studies have been published and most of the information is contained in the INP-CRIP La Paz internal reports. These can be obtained by special request to the INP.
References to this subject are: Ayala y Lucero 1987, Diario Oficial de la Federación (1987, 1988, 1992, 1995, 1996, 1997, 2000); NFCh, 2000 (Carta Nacional Pesquera); Espinoza-Castro, 1994; Vega, 1991; Vega et al, 1992; Vega et al, 1994; Vega et al, 1998; Franco Santiago R., 1994.
MSC PRINCIPLE 2
Fishing operations should allow for the maintenance of the structure, productivity, function and diversity of the ecosystem (including habitat and associated dependent and ecologically related species) on which the fishery depends.
Intent: The intent of this principle is to encourage the management of fisheries from an ecosystem perspective under a system designed to assess and restrain the impacts of the fishery on the ecosystem.
MSC Criterion 1. The fishery is conducted in a way that maintains natural functional relationships among species and should not lead to trophic cascades or ecosystem state changes.
Our interpretation of MSC Criterion 1. There is a well-defined and effective strategy to ensure that ecological impacts of the fishery are monitored, and restrained to minimize impacts on ecosystem function (trophic relationships, community and habitat structure and biodiversity). This strategy is based on rigorous assessment and a sound database. Size of fishery and trophic role of target species should be taken in account.
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Indicator 2.1.1 There is sufficient knowledge to manage the impacts from fishing on the ecosystem.
Score 80
The scoring of this indicator was based on the following considerations:
First, there is common widespread knowledge and appropriate studies (Morgan and Chuenpagdee, 2003) that show that the fishery has minor impacts on the ecosystem, based on the characteristics of its fishing gear and methods. Traps are among the least impacting gear on both the habitat and other species. Rocky and sandy bottoms where traps are set in this fishery are devoid of hard coral species, which in other areas might be harmed by the physical effect of the trap falling on them or being broken when the trap is pulled to the surface. Bait species and bycatch were considered and particularly reviewed.
Although there have been only a few studies pertaining to the likely effects of the fishery on the ecosystem, there seems to be little reason to expect that much research effort should be devoted to them. Thus, although specific studies have not been undertaken in all potential effects, such that the 100 scoring guidepost would be adopted, there seems to be little need for them.
Nonetheless, specific questions were made by the team to fishers, government technicians, fishery sector technicians, academic sector and NGOs technical personnel.
Macroalgae specialists (Drs. Elisa Serviere and Margarita Casas) mentioned the occasional effect of traps pulling off bottom algae during the extraction procedure, as well as fishers on occasion cutting Macrocystis when entangled in the traps being pulled. They regarded the impacts of such actions as negligible.
One whale specialist (Dr Jorge Urbán) once saw a grey whale (Escrichtius gibbosus) calf with a rope entangled in its fluke. It is hard to say whether the rope actually came from a lobster trap. He saw the same animal again several days later, still with the rope, but no harm seemed to result from it.
A sea lion specialist (Dr David Aurioles) stated that, to his knowledge, there seem to be no conflicts of pinnipeds with the fishery in the area in question. He recalled hearing on one occasion about harbor seals (Phoca vitulina) opening lobster traps, but no reports of harm to the seals.
Particular attention was paid to bait and bycatch species. Some years ago, several mollusks were utilized as bait, including chitons, limpets and snails (Vega, Selectividad y eficiencia de la pesca de langosta con trampas y resultados preliminares de pesca experimental con pesqueros levables en el oeste de Baja California Sur). At present bait is restricted to oily fishes such as sardines, mackerel and bonito that are mostly purchased at Ensenada. None of these fish species appears to be from fisheries with any potential problem ( Diario Oficial de la Federación, 2000).
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Two of the team members (Bruce Phillips and Arturo Muhlia) made a field trip and found bycatch to be minimal. A study has been made looking at bycatch (Turrubiates et al. 1992); the list of species includes several invertebrates (echinoderms, molluscs and arthropods), fishes and one bird report, a cormorant. Beside the points mentioned in the preceding paragraphs, all the interviewed people stated that in their opinion there are no significant impacts of the fishery on the ecosystem.
Indicator 2.1.2 Research is carried out on biodiversity and community structure in habitats relevant to the fishery.
The intent is to enable an evaluation of the extent to which there is sufficient knowledge to integrate a specific monitoring program aimed at detecting future impacts of the fishery on the ecosystem.
Score 85
The specific area of the fishery has been continuously investigated for numerous years by personnel from the National Fisheries Institute, The CICESE (Centro de Investigación Científica y Educación Superior de Ensenada, the CICIMAR (Centro Interdisciplinario de Ciencias Marinas del IPN), the CIBNOR (Centro de Investigaciones Biológicas del Noroeste, SC), among other national research and graduate education institutions, as well as by foreign scientists from the Scripps Institution of Oceanography and an array of Southern California universities.
Although most research results have been published on certain species, notably those with commercial value as abalone, lobster and others, there have been some integration exercises, particularly those related with the biosphere reserve, both the previous studies for the decree itself and technical reports by the technical personnel from the El Vizcaino Biosphere Reserve that have worked on coastal communities precisely in the area of the fishery. A book, (Biodiversidad Marina y Costera de Mexico) edited by the Comisión Nacional de Biodiversidad (National Commission for Biodiversity, CONABIO) has chapters devoted to some of the main biological assemblages in the region.
Biodiversity has been investigated in the area over many years. Partial searches in bibliographic databases (ASFA, Aquatic Sciences and Fisheries Abstracts) using “coastal” and “California” key words together with some indication of the group name yield considerable amounts of published papers, albeit by no means complete, as follows:
Algae: 317; phytoplankton: 347; zooplankton: 165; fishes: 802; crustaceans: 170; and mollusks: 40. These lists are shown in Appendix 4.
These listed papers include several reviews and accounts, as well as information on biological communities.
SC 2.1.3 There is adequate knowledge of the ecosystem where the fishery operates.
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Indicator 2.1.3.1 Ranges of natural variation in abundance and/or productivity of key species under differing environmental conditions have been estimated such that effects of fishing might be identified against a background of natural fluctuations.
Score 90
Much work has been done on environmental variability at the California Current System. There is a good documentation of the scales of natural variation of the environment at interannual, decadal and multidecadal timescales. In general terms, multi-year periods of warming and cooling occur, separated by trend reversals; when related to multidecadal variation, such reversals have commonly been named regime shifts. The California and Alaska Currents vary in opposition during these lapses, intensification of one goes together with relaxation of the other.
When the California Current is intensified, the area cools down and sea level heights are anomalously low. The contrary occurs during relaxation intervals.
Several studies on population abundance of certain key species of the ecosystem as related to these scales of variation have been undertaken and are currently in progress. Most of the efforts have been devoted to small pelagic fishes (sardines, anchovies, mackerel, etc.); however, other species including larger pelagics as tuna and several planktonic organisms have been investigated. Macroalgae, including Macrocystis and other species, abalone and lobster interannual changes have also been examined.
The references (238, including interannual variability, decadal variability and regime shifts; far from exhaustive) are shown in Appendix 4.
Indicator 2.1.3.2 Communities in the habitats likely to be affected by the fishery are known
Score 80
Community structure and biodiversity have been relatively well studied in the area of the fishery. One scientist from CICESE (Dr. Luis Calderón) estimated that about 70% of the components of the biotic community were known. Although the estimation seems far too high, it does reflect the feeling that scientists have about the knowledge of the area.
Further, it should be noticed that the area is within the southern portion of the California Current System, one of the most studied and best known marine areas of the world; most species in the area are distributed also northward to southern or central California.
The reference lists in the annex give some idea of the accumulated knowledge about biodiversity and biotic communities in the area.
MSC Criterion 2: The fishery is conducted in a manner that does not threaten biological diversity at the genetic, species or population levels and avoids or
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Our interpretation of MSC Criterion 2. There is a well-defined and effective strategy to ensure that ecological impacts of the fishery are monitored, and restrained to minimize impacts on endangered, threatened, protected or icon species (we define icon species as any species of particular public interest that does not qualify under the terms ‘endangered, threatened, or protected’). These impacts may be identified at the genetic, population, or community level. For a community fishery, the genetic structure is not considered.
Indicator 2.2.1 The management system takes into account the impacts of the fishery on listed species
Score 90
One study specifically examines by-catch species in the fishery (Turrubiates et al., 1992) while others include lists of species used for bait or found as bycatch. Selectividad y eficiencia de la pesca de langosta con trampas y resultados preliminares de pesca experimental con pesqueros levables en el oeste de Baja California Sur).
None of the species reported as bycatch in the fishery are listed as threatened or endangered (list by California Department of Fish and Game; Habitat Conservation Planning Branch; www.dfg.ca.gov, or the IUCN list, 2002 IUCN Red List of Threatened Species) or are identified as icon species. Specific questions were asked of specialists in local research institutions to detect any interactions with marine mammals.
The evaluation team also asked CRIP scientists whether there were any known interactions between the fishery and threatened or endangered species. CRIP scientists could not find any specific records of known interactions with threatened or endangered species in the area of the fishery throughout the many years of monitoring in the area. Although the evaluation team did hear from others (see previous discussions) that on rare occasion an interaction with a protected or icon species may occur, it was acknowledged that these instances were at best very rare and did not result in any mortalities.
Indicator 2.2.2 Research is being carried out to measure impacts of the fishery on endangered, threatened or protected species.
The intent is to enable an evaluation of the extent to which there are assessments or predictions of impacts of the fishery, and monitoring of the populations considered likely to be affected such that any impacts are likely to be identified.
Score 90
No major interaction with listed species has been detected. Nonetheless, research is being normally conducted by CRIP that includes cooperation with specialists from
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FINAL REPORT Baja California, Mexico Scientific Certification System, Inc. Red Rock Lobster Fishery research and academic institutions working on listed species in the area. To date, there has been no report of any significant impacts of the fishery on listed species.
MSC Criterion 3: Where exploited populations are depleted, the fishery will be executed such that recovery and rebuilding is allowed to occur to a specified level within specified time frames, consistent with the precautionary approach and considering the ability of the population to produce long-term potential yields.
Our interpretation: We interpret this criterion to be considering the question whether populations of animals that have been reduced in abundance over time by past actions of the fishery are now being enabled to recover through alterations in the management of the fishery that promote their recovery and rebuilding. We take ‘exploited populations’ to mean ‘impacted populations of species other than the fishery target species since Principle 2 is directed at aspects of the ecosystem beyond the maintenance of the target stock (which is dealt with in Principle 1).
SC 2.3.1 There is a strategy to ensure that ecological impacts of the fishery would be restrained to permit recovery and rebuilding of any population of impacted species that had been depleted by previous actions of the fishery.
Indicator 2.3.1.1 Management strategies include provision for restrictions on the fishery to enable recovery of populations of impacted species that have been depleted by previous actions of the fishery.
The evaluation team interpreted this indicator to be relevant only to non-target species. Therefore, if no depletion has occurred in non-target species, the evaluation team would not score the fishery on this indicator.
For background, the fishery has a strategy for management of target species such that depleted populations can be identified and management rules invoked to rebuild the populations. There is evidence of how this works from the recovery of the lobster populations in the early 1990s (see Indicator 1.2.1). Since most bycatch species caught in any numbers would also be considered target species, this same principle would apply.
Indicator 2.3.1.2 There is sufficient information to determine what changes in fishery management are necessary to recover depleted populations of impacted species.
The evaluation team again interpreted this indicator to be relevant only to non-target species. Therefore, if no depletion has occurred in non-target species, the evaluation team would not score the fishery on this indicator. However, there is evidence in the lobster fishery for the target species that the management system does know how to respond to depletions, and can do so in a timely manner (see Indicator 1.2.1). Since most bycatch species caught in any numbers would also be considered target species (e.g. other lobster species, octopus), this same principle would apply.
MSC PRINCIPLE 3
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The fishery is subject to an effective management system that respects local, national and international laws and standards and incorporates institutional and operational frameworks that require use of the resource to be responsible and sustainable.
Intent: The intent of this principle is to ensure that there is an institutional and operational framework for implementing Principles 1 and 2, appropriate to the size and scale of the fishery.
“A. Management System Criteria:
1. The fishery shall not be conducted under a controversial unilateral exemption to an international agreement.
The management system shall:
2. Demonstrate clear long-term objectives consistent with MSC Principles and Criteria and contain a consultative process that is transparent and involves all interested and affected parties so as to consider all relevant information, including local knowledge. The impact of fishery management decisions on all those who depend on the fishery for their livelihoods, including, but not confined to subsistence, artisinal, and fishing-dependent communities shall be addressed as part of this process;
3. Be appropriate to the cultural context, scale and intensity of the fishery – reflecting specific objectives, incorporating operational criteria, containing procedures for implementation and a process for monitoring and evaluating performance and acting on findings;
4. Observe the legal and customary rights and long-term interests of people dependent on fishing for food and livelihood, in a manner consistent with ecological sustainability;
5. Incorporates an appropriate mechanism for the resolution of disputes arising within the system;
6. Provide economic and social incentives that contribute to sustainable fishing and shall not operate with subsidies that contribute to unsustainable fishing;
7. Act in a timely and adaptive fashion on the basis of the best available information using a precautionary approach particularly when dealing with scientific uncertainty;
8. Incorporate a research plan – appropriate to the scale and intensity of the fishery – that addresses the information needs of management and provides for the dissemination of research results to all interested parties in a timely fashion;
9. Require that assessments of the biological status of the resource and impacts of the fishery have been and are periodically conducted;
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10. Specify measures and strategies that demonstrably control the degree of exploitation of the resource, including, but not limited to: a) Setting catch levels that will maintain the target population and ecological community’s high productivity relative to its potential productivity, and account for the non-target species (or size, age, sex) captured and landed in association with, or as a consequence of, fishing for target species; b) Identifying appropriate fishing methods that minimize adverse impacts on habitat, especially in critical or sensitive zones such as spawning and nursery areas; c) Providing for the recovery and rebuilding of depleted fish populations to specified levels within specified time frames; d) Mechanisms in place to limit or close fisheries when designated catch limits are reached; e) Establishing no-take zones where appropriate;"
"11. Contains appropriate procedures for effective compliance, monitoring, control, surveillance and enforcement which ensure that established limits to exploitation are not exceeded and specifies corrective actions to be taken in the event that they are.
B. Operational Criteria
Fishing operation shall:
12. Make use of fishing gear and practices designed to avoid the capture of non-target species (and non-target size, age, and/or sex of the target species); minimize mortality of this catch where it cannot be avoided, and reduce discards of what cannot be released alive;
13. Implement appropriate fishing methods designed to minimize adverse impacts on habitat, especially in critical or sensitive zones such as spawning and nursery areas;
14. Not use destructive fishing practices such as fishing with poisons or explosives;
15. Minimize operational waste such as lost fishing gear, oil spills, on-board spoilage of catch, etc.;
16. Be conducted in compliance with the fishery management system and all legal and administrative requirements; and
17. Assist and cooperate with management authorities in the collection of catch, discard, and other information of importance to effective management of the resources and the fishery."
SC 3.1 The management system has a clearly defined scope capable of achieving MSC Principles and Criteria and includes short and long-term objectives, including ecosystem objectives, consistent with a well managed fishery
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Intent: This criterion is intended to assess the match between the Baja California red lobster fisheries management system and the terms and intentions of the MSC Principles and Criteria.
Indicator 3.1.1 The management system incorporates and applies an adaptive and precautionary exploited stock strategy [Relates to MSC Criteria 3.2, 3.7, 3.9, 3.10]
Score 92
There is no specific management plan for the red lobster fishery in Baja California. However, it is controlled under the Federal Governments regulations for sustainable fishing, and a strong co-management system exists between the Government and the fishing cooperatives.
There is a scientific assessment of stock undertaken by INP that CONAPESCA, uses as the basis of the management regulations. MSY is used as a long-term stock management objective and this is set at a precautionary level. It was last reviewed officially in 2000 and is published in the Diario Oficial. In addition a study of the population dynamics and an evaluation of the fishery in the central area of the Baja California Peninsula in 1999-2000 were made by Armando Vega Velazquez, who is a member of CRIP. However, the study was undertaken for his PhD. Research Reports and draft results of this study are available, but the PhD has not yet been awarded and the director of the CRIP in La Paz advised that INP would eventually make its own analysis of the study before considering making any recommendations about adopting any recommendations made in the PhD study. This indicates a careful and considered approach to management of the fishery.
Effort in the fishery is controlled by limiting the number of fishers, the number of vessels, and the number of traps in each Cooperative. Not all Cooperatives fish with the maximum allowed numbers of these items. Each Cooperative presents to CONAPESCA their plan of operation for the following season. The largest catches in the life of the fishery have been made in recent years. However, it was instructive to learn that the Cooperatives consider these to be the result of exceptional environmental conditions, resulting in exceptional recruitments to the fishery. They have therefore taken a conservative approach and planned for future annual catches near to the long-term average catch levels.
There have been many changes in trap design over the years. These changes do not seem to have been recorded, at least by the Cooperatives. The changes in fishing efficiency of the traps appear to be unmeasured.
Size and sex composition sampling of the catch is undertaken by the CRIP. Escape gaps have been introduced into the trap design and these have been scientifically evaluated.
Indicator 3.1.2 The management system incorporates and applies an effective strategy to manage the ecological impacts of fishing [Relates to MSC Criteria 3.2, 3.7, 3.9, 3.10]
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Score 75
There is no specific strategy in the management system for examining or considering the impacts of fishing because there have been no identified areas of fragile marine habitat that have been significantly impacted by fishing. Therefore, no actions have been required.
Much of this fishery takes place within the Vizcaino Biosphere Reserve. Discussions with the officials of the Reserve identified that there are no known fragile types of marine habitat within the Reserve or in any other part of the fishing zone. In addition, fishing takes place in very small boats, using light gear. Habitat impacts are therefore considered to be minimal.
The traps occasionally catch as bycatch, fin fishes (kelp bass, sheephead, white fish, rock fishes, giant sea bass), morays eels and some small sharks ( horn shark, leopard sharks). Even more rarely they catch Abalone (Haliotis sp.), Pismo clam, Gelidium algae, Top shell (Astraea undosa), Crabs (Cancer spp.), Octopus sp., Sea Cucumber (Parastichopus sp).
The bycatch levels are apparently very low. Modifications to the traps to increase lobster catches over many years have had the effect of reducing bycatch levels such that they are almost non-existent. During a field visit by the assessment team to observe fishing operations, no items of bycatch were observed in about 12 traps examined.
Nevertheless, a strategy for identifying and managing the impacts of fishing needs to be developed within the management system to ensure that impacts are not inadvertently overlooked and given a chance to become problems in the fishery. Specifically, the fishery managers need to be able to not only understand potential risk from direct impacts, they need to be able to understand potential impacts and risks from indirect impacts such as potential follow on effects from the removal of large amounts of lobster biomass.
Condition
A specific strategy must be developed and incorporated into the management system (at any level) that provides for understanding the importance of ecosystem impacts from fishing and details how potential impacts will be identified, monitored, and managed, and what timeframes (yearly, every 5 years, etc.) will be used to review this information.
Indicator 3.1.3 The management system incorporates and applies an effective strategy to manage the socioeconomic impacts of the fishery, and the fishery is free from significant subsidies which promote over fishing or ecosystem degradation. [Relates to MSC Criteria 3.2, 3.4, 3.6, 3.7]
Score 95
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Fishing is undertaken at each cooperative under a long-term concession from the Federal Government of Mexico. This means that the long-term interests of the fishing community are an essential part of the management system. Fishing rights were first exclusively allocated to fishermen's Cooperatives in 1936/1938, by the assigning a group of species (lobster, abalone and others) within a delimited fishing territory for each organization (Vega et al. 1997). A scheme of limited entry originated from this system, which allows good control of effort and fulfilment of basic regulations (Vega et al. 1997; Vega et al. 2000). Cooperatives are now authorized for lobster harvesting, through a concession granted in 1992, lasting 20 years, which includes a clear delimitation of exclusive fishing zone for each Cooperative. The Cooperative itself regulates the fishing operations including physically and financially assisting with enforcement of the regulations.
There are no subsidies to the lobster fishery.
SSC 3.1.4 There is a well-defined strategy for research related to the objectives of the fishery
Indicator 3.1.4.1 The management system has a plan for research needed to support the harvest strategy [Relates to MSC Criterion 3. 8]
Score 75
Although there is some description of the research needed to support the fishery harvest plan, there is no prioritised plan for the research, or it was not made publicly available to the evaluation team.
The present process is that the scientists in CRIPs essentially design the biological research that is undertaken on lobsters. There is considerable communication between the scientists and the Cooperatives, and in most years there is an annual meeting between the CRIP and a considerable number of stakeholders, including representatives of the Cooperatives. The critical biological research, such as data on age structure, sex composition, effectiveness of escape gaps, needed for the fishery is undertaken.
Biological research results of the lobster studies are usually presented annually to stakeholders at public meetings. In addition there is a range of publications issued by the management agencies describing the research and the results from research studies.
A wide range of studies by both Mexican and USA students are undertaken on habitats and the environment of the areas in which the lobster fishery is conducted.
A formal prioritized research plan to support the harvest strategy for the lobster fishery needs to be developed within the management system. This would appear to require very little effort. It is clear that the CRIP scientists already have a plan in mind and present it to stakeholders and fishers. If it were formalized, it would make it easier for all interested parties to examine and endorse or modify the plan during the
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Condition
A plan for conducting research to support efforts to develop appropriate harvest strategies must be specified, including timeframes for review and organizations or persons responsible for implementing the plan.
Indicator 3.1.4.2 The management system has a plan for research needed to support the understanding of the ecological impacts of fishing [Relates to MSC Criterion 3.8]
Score 75
There is no specific research plan to support the ecological impacts from fishing.
This is essentially because the fishing gear is relatively light and there appear to be no apparent significant impacts of the lobster fishery on the habitats in the area of the fishery, and bycatch is almost non-existent.
The artisinal nature of the fishery and its apparent lack of habitat impacts mean that there is probably no need for large scale ecosystem studies. However, an ecosystem management strategy needs to be properly documented for the fishery and sufficient data collected to consider what research needs to be undertaken to support the ecosystem.
Condition
The same condition applies as under Principle 2, Indicator 3.1.2.
SC 3.2 The management system recognizes applicable legislative and institutional responsibilities and coordinates implementation on a regular, integral, explicit basis.
This criterion is intended to assess the compliance of the Baja lobster fishery management system with applicable laws and rules.
Indicator 3.2.1 The fishery is managed and conducted in a manner that respects international conventions and agreements and not under any controversial unilateral exemption to an international agreement [Relates to MSC Criterion 3.1]
Score 100
The fishery is managed and conducted in a manner that respects international conventions and agreements and not under any controversial unilateral exemption to an international agreement.
Indicator 3.2.2 The fishery is managed and conducted in a manner that complies with domestic law [Relates to MSC Criterion 3.16]
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Score 95
As far as the fishery managers are aware, the lobster fishery does not contravene any domestic law.
No officer or agent of the management system, including its component entities, has at any time been found to be in contempt of any domestic court of jurisdiction on any matter related to performance of official duties on behalf of the management system.
SC 3.3 Stakeholders are directly involved in management of the fishery, disputes can be settled within the system and the managers have useful advice on which to base decisions.
Indicator 3.3.1 The management system involves all categories of stakeholders appropriately on a regular, integral, explicit basis [Relates to MSC Criterion 3.2]
Score 85
Communication with a large range of stakeholders on all aspects of the lobster fishery takes place at several levels. This includes public meetings, calls for comment on all proposed changes to fishing regulations, public meetings to describe proposed regulation changes, and informal discussions with representatives of the Cooperatives.
At public meetings, a wide range of stakeholders is invited and many attend. It is a standard practice, that if a decision is taken by the meeting, this decision is recorded and all those present sign to indicate their agreement to the decision.
It is difficult to assess if all stakeholder groups are satisfied with the results of the consultations that occur, however, no dissatisfaction was voiced to the assessment team by any of the people interviewed.
Indicator 3.3.2 The management system provides for timely and fair resolution of disagreements [Relates to MSC Criteria 3.2, 3.5]
Score 85
Cooperatives have the power to enforce regulations and management objectives within each of their legal concessions. As a result, each cooperative has an executive and a management committee that will hear complaints and disputes in attempt to manage conflict internal to the cooperative. There are documented cases of disputes between members and well as enforcement of illegal actions by members showing that the cooperatives are providing for and managing the process
Indicator 3.3.3 The management system presents managers with clear, relevant information, which is considered in decision-making [Relates to MSC Criterion 3.2]
Score 85
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Annual meetings of are held among the stakeholders in the fishery, particularly the regional Federation of Cooperatives of Baja California (FEDECOOP) and scientists from the CRIPs which are the regional centers of scientific investigation for the National Fisheries Institute of Mexico (INP).
As a result of these meetings new control rules have been developed, submitted to the authority, and finally formalized.
SC 3.4 The management system applies information through implementation of measures and strategies (by rule or by voluntary action of fishery) that demonstrably control the degree of exploitation of the resource in the light of the natural variation in ecosystems.
Indicator 3.4.1 The management system restricts gear and practices to avoid by- catch, minimize mortality of by-catch, and reduce discards [Relates to MSC Criterion 3.12, 3.17]
Score 90
The bycatch levels are very low. Modifications to the traps over many years have reduced bycatch levels such that they are almost non-existent. During a field visit by the assessment team to observe fishing operations, no items of bycatch were observed in about 12 traps examined.
The fishers assist and cooperate with authorities in the collection of catch, discard and other information on the fishery. Most Cooperatives have a trained technician on there staff to insure maximum uptake of new developments and to ensure collection of information for scientific and management purposes.
In recent years, the management authority introduced escape gaps into the traps to reduce discards. This was planned as a progressive introduction. However, the fishers voluntarily introduced them throughout the fishery well ahead of the management requirements.
Indicator 3.4.2 The management system minimizes adverse impacts on the habitat [Relates to MSC Criteria 3.10, 3.13]
Score 95
Much of this fishery takes place within the Vizcaino Biosphere Reserve. Discussions with the officials of the Reserve identified that the benthic habitats are well known and that there are no identified fragile types of habitat within the Reserve or in any other part of the fishing zone.
In addition, fishing takes place in very small boats, using light gear. Habitat impacts are therefore considered to be minimal.
Indicator 3.4.3 The management system does not allow use of destructive fishing practices [Relates to MSC Criterion 3.14]
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Score 100
The fishing regulations (Norm-006) specifically prohibit the use of all forms of destructive fishing practices.
There is excellent enforcement by the cooperatives of their legal fishing grounds. And there is no evidence of the use of explosives or toxic chemicals in the lobster fishery by legal or illegal fishers.
Indicator 3.4.4 The management system provides for rebuilding and recovery [Relates to MSC Criterion 3.10]
Score 95
No part of this lobster fishery is currently depleted and in need of rebuilding. However, abalone stock in this part of Mexico was over fished some years ago. They introduced a new management regime to rebuild the stock, and it was successful. Clearly, the management system is structured so that plans for rebuilding could be developed. Moreover, there are specific regulations regarding the depletion of stocks that require rebuilding if the stocks fall below a specified limit reference point.
Indicator 3.4.5 Incorporates no-take zones where appropriate [Relates to MSC Criterion 3.10]
Score 100
Part of the lobster fishery falls within the Reserve. Within the Reserve regulations prohibit:
XX. The placement of nets or traps of any type in the channels of lagoons Ojo de Liebre and San Ignacio, from December 15 of one year to April 15 of the following year; nor can they be used in sanctuary zones, nursery, lobster migration corridors; as well no trawling boats may work within the Reserve area.
The Ojo de Liebre and San Ignacio lagoons were fished for lobster many years ago, bur are now a closed area for fishing to protect the grey whales which use the area as a mating and nursery area. There were apparently some interactions between the whales and the ropes on the traps used in the lobster fishery, in the area of the entrance to the pool. However, no detrimental encounters were reported and this is no longer relevant today.
Neither of the lagoons is in the fishing areas of the nine Cooperatives being assessed for certification. However, the information above clearly indicates that no take zones can and have been introduced into this fishery, where appropriate.
Indicator 3.4.6 The management system minimizes operational waste [Relates to MSC Criterion 3.15]
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Score 95
During the assessment teams visit to examine the operations of the lobster fishery we observed that they had a strict program for removal of all operational wastes from the vessels. These included empty oil containers, rope ends, waste bait, etc.
Special containers were placed near the lobster receiving area in which to place the wastes brought in from the boats. These containers, when, full were transported out to the town rubbish tip.
Old boats are not sunk, but taken ashore to be repaired, or cut up and transported to the tip.
SC 3.5 The management system provides for enforcement and compliance [Relates to MSC Criteria 3.11, 3.16]
Indicator 3.5.1 The management system enforces compliance in the fishery and has knowledge of the level of illegal fishing on the target species.
Score 80
Within the area fished by the central Cooperatives, there is a great deal of co- management to control poaching by surveillance in the fishery. Cooperatives each contribute about $US 100,000 towards the cost of compliance, including paying for the salary of an enforcement officer.
Data on the exact level of compliance is hard to obtain. The agency PROFEPA was responsible for compliance in the area until recent times, but did not produce the written information, which was requested. However, the Reserve has apparently written a report on cases of illegal fishing, etc. This report, we were advised, would be made available during this full assessment, but it has not been made available. However, according to the PROFEPA and Biosphere Reserve staff the levels of illegal fishing are quite low and mostly focused on abalone, not lobster.
Compliance in the red lobster fishery in the central area appears to be very high. There is full compliance with the regulations on undersized and berried females. There are some minor and occasional problems with some members fishing out of season or checking other members fishing gear. The cooperative deals severely with members committing these crimes and has a record of removing members from the cooperative in such cases.
Poaching of lobsters outside the area of the central cooperatives may occur, and is estimated to be equivalent to 15% of the legal catch in these areas. The main target of poachers appears to be abalone (interviews with cooperatives providing the enforcement).
SC 3.6 The performance of the management system is regularly and candidly evaluated and adapted as needed to improve
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Indicator 3.6.1 The management system provides for internal assessment and review [Relates to MSC Criterion 3.3]
Score 90
The present Federal Government of Mexico has established a new overall National Commission (CONAPESCA) to oversee the entire fisheries and aquaculture system for the country and to manage the resources sustainably.
The management system includes a high level of communication with fishers and other stakeholders, and this communication is well documented. An open annual Workshop of all stakeholders is held by CRIP-La Paz to discuss research results, the state of the fishery etc. This provides an excellent opportunity for evaluation of management performance.
There is a review by CONAPESCA utlizing comments from stakeholders, such as the fishing cooperatives, whenever it is proposed to review or changes the management system by means of communications throughout the Diaro Oficial. The Diario oficial is the general mechanism used by the Mexican government to communicate to the public, new changes in mechanism. This has occurred within the last 12 months in this fishery (Annual Report of the Technical Committee of the Baja California Lobster fishery).
All of the regulations and operations of the fishery must comply with the official regulation for the fishery NOM-006-PESC-1993. This norma is reviewed each 5 years and wide consultation takes place with stakeholders at this time.
Indicator 3.6.2 "The management system provides for external assessment and review [Relates to MSC Criterion 3.2, 3.3]
Score 90
There is also a committee of review of government department or instrumentalities (above CONAPESCA) called: Organo de Gobierno or Consejo Consultivo de CONAPESCA (composed of Ministry members). This acts as a watchdog committee. It makes regular reports to the Federal Government of Mexico.
Indicator 3.6.3 The management system identifies research needs and directs appropriate funding and other resources to these problems[Relates to MSC Criteria 3.3, 3.7]
Score 85
The annual meeting with the fishers and officials from the Cooperatives, and other stakeholders, identifies problems and discusses possible problems and the research needed to solve them.
Resources, including funding, to conduct the research appears sufficient to address the critical gaps in knowledge identified by the management system for stock assessments
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and other management needs with the exception of research to identify and understand ecological impacts (see Principle 2, Indicators 3.1.4.1 and 3.1.4.2).
7. CERTIFICATION RECOMMENDATION
7.1 Certification Recommendation and Scoring
It is the assessment team's consensus judgment that the management of Mexico’s Baja California Red (Spiny) Lobster fishery complies overall with the MSC Principles and Criteria. Therefore, SCS as the certification body of record recommends the fishery for certification. The applicant must now propose an ‘Action Plan’ for meeting the ‘Conditions for Continued Certification’ and have the plan approved by SCS. A contractual agreement will then be entered into by the applicants and SCS that require the applicants comply with all specified conditions detailed in Section 6 and under other applicant responsibilities in this section or lose the right to certification.
The fishery achieved a normalized score of 80 or above on each of the three MSC Principles independently (Principle 1 = 88.5, Principle 2 = 85.28, Principle 3 = 88.39). Although the evaluation team found the fishery in overall compliance (a normalized score of 80 on each MSC Principle), it also found the fishery's performance on a number of specific indicators to be below the established compliance mark (an unweighted score of 80 for a single indicator). In these specific cases, the MSC requires that the Certification Body set 'Conditions for Continued Certification' or Corrective Action Requirements that when met bring the level of compliance for the select indicator up to the 80-level score. Table 5 below shows the specific results of the evaluation in terms of Principle 1, 2, and 3.
It is important to remember that Principle 3 performance indicators were developed in a different form and numerical sequence from the actual criteria and indicators under MSC Principle 3. Since the certification body is not supposed to change the MSC criteria, the performance measures were linked back to the specific MSC criteria as provided in Table 5 shown below. Table 5 also shows the actual scores and weights assigned to each of the indicators in the AHP program.
Table 5. Scoring assigned to fishery using AHP.
Principles, Criteria, Subcriteria, AHP Assigned AHP Assigned and Indicators Score Weight MSC .333 Principle 1 MSC .422 Criterion 1 SC 1.1.1 .363 Indicator 85 .247 1.1.1.1 Indicator 90 .323 1.1.1.2 Indicator 95 .243 1.1.1.3 Indicator 95 .187
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1.1.1.4 SC 1.1.2 .332 Indicator 95 .140 1.1.2.1 Indicator 85 .200 1.1.2.2 Indicator 85 .330 1.1.2.3 Indicator 85 .330 1.1.2.4 SC 1.1.3 .305 Indicator 80 .429 1.1.3.1 Indicator 85 .286 1.1.3.2 Indicator 90 .286 1.1.3.3 MSC .233 Criterion 2 Indicator 90 1.00 1.2.1 MSC .355 Criterion 3 Indicator 85 1.00 1.3.1
MSC .333 Principle 2 MSC .667 Criterion 1 Indicator 80 .500 2.1.1 Indicator 85 .250 2.1.2 SC 2.1.3 .250 Indicator 90 .667 2.1.3.1 Indicator 80 .333 2.1.3.2 MSC .333 Criterion 2 2.2.1 90 .667 Indicator 90 .333 2.2.2
MSC .333 Principle 3 SC Criterion .167 1 Indicator 92 .315 3.1.1 Indicator 75 .153 3.1.2 Indicator 95 .315 1.3 SC 3.1.4 .217 Indicator 75 .667 3.1.4.1
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Indicator 75 .333 3.1.4.2 SC Criterion .157 2 Indicator 100 .500 3.2.1 Indicator 95 .500 3.2.2 SC Criterion .180 3 Indicator 85 .500 3.3.1 Indicator 85 .250 3.3.2 Indicator 85 .250 3.3.3 SC Criterion .192 4 Indicator 90 .185 3.4.1 Indicator 95 .176 3.4.2 Indicator 100 .176 3.4.3 Indicator 95 .176 3.4.4 Indicator 100 .112 3.4.5 Indicator 95 .176 3.4.6 SC Criterion Indicator 80 .220 5 3.5.1 SC Criterion .084 6 Indicator 90 .347 3.6.1 Indicator 90 .199 3.6.2 Indicator 85 .455 3.6.3
7.2 Conditions for Continued Certification
To be awarded an MSC certificate for the fishery, the applicants must agree in a written contract with SCS to develop an action plan for meeting the required 'Conditions' outlined in this report; a plan that must provide specific information on what actions will be taken, who will take the actions, and a timeline for the completion of all actions. The Action Plan must be approved by SCS as the certification body of record before a certificate can be awarded. The applicant must also agree in a written contract to be financially and technically responsible for surveillance visits by the certification body of record (SCS), which would occur at a minimum of once a year, but could be more often if the certification body deems it necessary based on the conditions to be fulfilled.
20 March 2004 62 Document No. SCS.BCL.FD.032004
FINAL REPORT Baja California, Mexico Scientific Certification System, Inc. Red Rock Lobster Fishery
Surveillance audits will be comprised in general of (1) checking on compliance with the agreed action plan for meeting pre-specified ‘Conditions’, and (2) sets of selected questions that allow the certifier to determine whether the fishery is being maintained at a level of performance similar to or better than the performance recognized during the initial assessment.
The certification body will be mindful of the difficulties that may accrue as a result of different interests in the fishery when measuring performance against the required conditions. Our review of the fishery revealed considerable cooperative efforts among the commercial fishing sector and government, and we trust that such cooperation will continue during the years following certification.
7.2.1 General Conditions for Continued Certification
The general 'Conditions' set for the Baja California Red (Spiny) Lobster fishery are: