MARCH 2021 Integrating Legal Protections for Sharks and Rays into Western and Central Pacific Fisheries Commission Regulation ACKNOWLEDGEMENTS This document was prepared by the Environmental Law Institute (ELI). The primary drafter was Greta Swanson, with input received from Xiao Recio-Blanco. The drafters wish to express gratitude to members of the Pacific Islands Forum Fisheries Agency, Glenn Sant, and Colin Simpfendorfer. Funding was generously provided by the Shark Conservation Foundation. The contents of this report, including any errors or omissions, are solely the responsibility of ELI. The authors invite corrections and additions. ABOUT THE ENVIRONMENTAL LAW INSTITUTE & THE ELI OCEAN PROGRAM The Environmental Law Institute makes law work for people, places, and the planet. Since 1969, ELI has played a pivotal role in shaping the fields of environmental law, policy, and management, domestically and abroad. Today, in our sixth decade, we are an internationally recognized, non-partisan publishing, research, and education center working to strengthen environmental protection by improving law and governance worldwide. To address threats to the marine environment, the ELI Ocean Program focuses on strengthening ocean and coastal law and policy domestically and internationally. We support ocean management systems that are based on local priorities, inclusive and effective processes, and best available information. Integrating Legal Protections for Sharks and Rays in the WCPFC. © 2021 Environmental Law Institute®, Washington, D.C. All rights reserved. A PDF file of this report may be obtained for no cost from the Environmental Law Institute website at www.eli.org. Please contact Xiao Recio-Blanco ([email protected]) for more information. Cover Image: Jacob Owens on Unsplash 2 Contents INTRODUCTION TO THE REPORT ....................................................................................................................... 5 SECTION 1: PROTECTIONS AND LISTINGS FOR SHARKS AND RAYS WITHIN THE WESTERN AND CENTRAL PACIFIC FISHERIES CONVENTION AREA ........................................................................................ 6 Overview of Treaty Commitments ......................................................................................................................... 6 Western and Central Pacific Fisheries Convention and Conservation Management Measures .............................. 9 Convention on International Trade in Endangered Species (CITES), Convention on the Conservation of Migratory Species of Wild Animals (CMS), and Memorandum of Understanding on the Conservation of Migratory Sharks (Sharks MOU) .............................................................................................................................................................. 10 CITES ........................................................................................................................................................................ 11 CMS ......................................................................................................................................................................... 11 Species Regulated ....................................................................................................................................................... 14 Overview of Conservation Status and Regulatory Measures for Shark Species ....................................................... 18 Oceanic Whitetip Shark (Carcharhinus longimanus) ............................................................................................... 19 Silky Shark (Carcharhinus falciformes ..................................................................................................................... 19 Thresher Shark (Alopias superciliosus – Bigeye; Alopias vulpinus – Common; Alopias pelagicus – Pelagic) .......... 20 Hammerhead Shark (Sphyrna lewini ‒ Scalloped; Sphyrna mokarran – Great; Sphyrna zygaena ‒ Smooth) ........ 20 Whale Shark (Rhincodon typus) .............................................................................................................................. 21 Basking Shark (Cetorhinus maximus) ...................................................................................................................... 21 White Shark (Charcharodon carcharias) ................................................................................................................. 21 Dusky Shark (Carcharhinus obscurus) ..................................................................................................................... 22 Mako Shark (Isurus oxyrinchus – Shortfin; Isurus paucus – Longfin) ....................................................................... 22 Porbeagle Shark (Lamna masus) ............................................................................................................................. 22 Blue Shark (Prionace glauca) ................................................................................................................................... 23 Manta Rays (Manta alfredi, Manta birostris) .......................................................................................................... 23 Mobula Rays (Mobula birostris, Mobula eregoodootenkee, Mobula hypostoma, Mobula japanica, Mobula kuhlii, Mobula mobular, Mobula munkiana, Mobula rochebrunei, Mobula tarapacana, Mobula thurstoni) ................... 23 SECTION 2. CITES LEGAL ACQUISITION FINDING AND NON-DETRIMENT FINDING ........................ 24 Legality Determination (Legal Acquisition Finding) ................................................................................................... 24 Parties’ Actions to Ensure Compliance With RFMO Regulations ............................................................................ 25 Traceability of Catch ................................................................................................................................................ 29 Other Measures to Check for Legality ..................................................................................................................... 33 Non-Detriment Findings ............................................................................................................................................. 38 CITES Requirements ................................................................................................................................................ 38 Potential Role of the WCPFC in Making Regional NDFs .......................................................................................... 39 3 SECTION 3: GAPS AND SYNERGIES BETWEEN THE CMS AND WCPFC REGULATION ....................... 43 Prohibition on Taking of Species in CMS Appendix I ................................................................................................. 47 Recommendation .................................................................................................................................................... 49 Requirement That Fishing Mortality Does Not Result in Significant Population Decline ......................................... 49 Recommendation .................................................................................................................................................... 49 Setting Targets for Fishing Quotas or Effort for Sharks ............................................................................................. 50 Recommendation .................................................................................................................................................... 50 Use of Selective Gear, Techniques, and Incidental Capture Mechanisms to Ensure Sustainable Take of Sharks ...................................................................................................................................................................... 50 Recommendation .................................................................................................................................................... 51 Landing With Fins-Attached Rules .............................................................................................................................. 52 Recommendation .................................................................................................................................................... 53 Area-Based Regulation ............................................................................................................................................... 53 Actions Under the MOU and Concerted Action for Mobulid Rays .......................................................................... 54 Recommendation .................................................................................................................................................... 57 NEXT STEPS .............................................................................................................................................................. 57 4 Introduction to the Report Sharks play an essential role in the marine ecosystem. As predators, they help to maintain balance in the food chain, eliminate sick and weak animals, and ensure species diversity; and may play a role in protecting coral reefs.1 Numerous species of migratory sharks traverse the area of the Western and Central Pacific Ocean, migrating across national boundaries and into the high seas, areas beyond national jurisdiction