PISHERY FEDElkALISN»' -INRRRGOVERNNmNTM DECISION@AXING IN PISSERY NMNhQENENT IN MWAII NATIONAI. SEA GRANT DEPOSITORY, PELL LIBRARY 3~JlLDING URI, NAi H~ i:iNSETTBAY CAMPUS NARRAC iNSETT,R I 02882 Rose T. Pfund B.A., University of Hawaii, 1951 H.Ed., University of Hawaii, 1978 Submitted to the Graduate Faculty of Graduate School of Public and International Affairs in partial fulfillment of the requirements for the degree of Doctor of Philosophy University of Pittsburgh 1985 c! Copyright by Rose Toshiko Pfund l985 All Rights Reserved PS Rll ISII': 1%RIWSPR XN PISHERY NANhGENENT IM MNAII Rose T. Pf und, Ph. D. University of Pittsburgh, 1985 Regional f ishery management councils RFNCs!, composed of federal and state fishery administrators and f ishers, were established under the Nagnuson Fishery Conservation and Man- agement Act MPCMA! of 1976 to operationalize this newest f orm of intergovernmental administration "f ishery f ederal- ism.' This study on the implementation of the NFCMA in Hawaii was centered on two aspects of organizational behav- ior: ! the pervasive influence of historical antecedents and organizational norms on the operations of the Western Pacific RPNC and ! the sociology of fishery decisionmakers' information sources and their ability to use new information for problem solving. Federal and state laws and congressional and archival documents provided background data on the formulation of the NFCMA, legal origins of state and federal fishery agencies, and Hawaii-United States relations. Six classes of f ishery influentials were characterized by their openness-closedness profile, a psychological index which was developed as one part of this study. The inf ormation network of administra- tors was used to develop a map of the information sources and flow for one state and two federal fishery agencies. Results indicated that the process of decisionmaking is not enhanced by structural changes to provide voting parity because operational knowledge is not transferred with such changes and decisionmakers are influenced by organizational norms and historic antecedents. Zn addition, the socio-psy- chological dimension of f ishery influentials revealed inhe- rent differences in their capacity to utilize information for problem solving> hence the information needs of these classes are not compatible. Moreover, risk-taking should probably be indexed to a decisionmaker's ability to use new information for problem solving rather than to its availability. Pinally, because Hawaii's geomorphology and f isheries preclude the state fram 'measuring up" to national standards, a federal-state compact, the Hawaii Pishing Authority, is proposed f or the management of Hawaii' s f ishery resources. PREFACE In 197S af ter hearing a chance remark that less that l0% of all academic research results were actually applied to societal needs, I conducted a survey of federal agencies which fund academic research. I was disturbed to find that these agencies did not evaluate the societal impact of the research they had funded. Moreover, except for two agencies, the National Aeronautics and Space Administration and the Department of Agriculture, none of the agencies had had technology transfer projects as a programmatic component. In other words, little or no effort was made to disseminate research results to users. Because of my position at that time as the coordinator of publications and information services of the University of Hawaii Sea Grant College Program, my first thought was that there was a need to institutionalize channels for disseminat- ing technical and scientif ic inf ormation. Accordingly, I wrote a research proposal to characterize the information channels of fishery agencies and decisionmakers in Hawaii. The proposal, "Institutional Policymaking on the Management of Resources of the Northwestern Hawaiian Islands," Project No. NI/R-lS, was funded by Sea Grant for two years f.y. 1982 and l983! . The results of this research provided the empiri- cal data which characterize the information sources of the administrators of two federal and one state fishery agencies and enabled me to develop the openness-closedness indices, which characterize the ability of six classes of fishery decisionmakers to use information for problem-solving. Throughout the period of data gathering and analyses and writing and re-writing of this dissertation, the encourage- ment of Dr. Jack Davidson, Director of the University of Hawaii Sea Grant College Program, was unwavering. I espe- cially appreciate his well-timed prodding. No doctoral dissertation can ever be completed success- fully without the conviction of the dissertation advisor that the work of his or her student is a diamond in the rough and that its brilliance will shine through with editing and re-writing. For his patience and forebearance and the intellectual challenges he posed, which forced me to learn what discipline really means, I express my gratitude to Dr. Frederick C. Thayer. His suggestions, criticisms which I sometimes took unkindly!, questions, and more questions have been the catalysts which precipitated new thoughts and rela- tionships. Xf any part of this dissertation rises above the ordinary, it is in large part due to Dr. Thayer's remorseless and unceasing prodding and questioning. lt was my good for- tune that he agreed to chair my dissertation committee. And finally, I express my deep appreciation to my hus- band, Roy, and family Leona, Eric, Frederick, Laurel and Patricia for their support and ecouragement. ACKNHMIHKNEHT The author was the principal investigator of a two-year project entitled, 'Institutional Pol icymaking on the Manage- ment of the Resources of the Northwestern Hawaiian Islands,' NI/R-15, funded by the University of Hawaii Sea Grant College Program under NOAA Institutional grant no. NASl-AA-D-00070. This project enabled the author to carry out the empirical field surveys and complete the data analyses. I am also indebted to the following individuals who re- viewed drafts of various sections of this dissertation< Herbert Weaver, Dean Neubauer, Rober t Skillman, Richard Uchida, Henry Okamura, Paul Kawamoto, Allan Katekaru, Abraham Piiania, Karen Tanoue, Brooks Takenaka, Karl Samples, Jerry Leinecke, Henry Sakuda, Howard Yoshida, Gertrude Nishihara, and Alexander Spoehr. TABLE OP CONTENTS Page PREFACE~ ~ ~ ~ o ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ . ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ o ~ ~ e ~ i ~ ~ ~ ~ ~ ~ ~ . ~ ~ ~ ~ ~ ~ ~ ~ v Chapter l. INTRODUCTION........................,......... l PART I THE INSTITUTIONAL NEXUS Chapter 2. THE MGNUBON FISHERY CONSERVATION AND MANAGEMENT ACZ: The National Mandate.......... 21 Chapter 3. THE STATE OF HAWAII AND XTS FISHERY RESOURCESi~ ~ ~ ~ ~ ~ ~ ~ ~ 0 ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ 0 ~ ~ ~ ~ ~ ~ ~ ~ F 0 ' 68 Chapter 4. "MANIFEST DESTINY' s THE UNITED STATES- HNAZI ZNTERACTXONI e .. o i i... e . s . i e s . e e . i o.... e 101 PART II+ THE INSTITUTIONAL ACTORS THEIR MISSION AND INTl9kESTS Chapter 5. THE V. S. FISH AND WILDLIFE SERVICE............l36 Chapter 6. THE NATIONAL MARINE FISHERIES SERVICE.........l62 Chapter 7. THE HAWAII DZVISXON OF AQUATIC RESOURCES......186 Chapter 8. THE HAWAIIAN COMMERCIAL FISHERS...............21l PART XII. THE HUMAN ELENENT OP iPISHY FEDERALISM' Chapter 9. THE WESTERN PACIFIC RBGIONAL FISHERY MANAGEMENT OOUNCXL. ~ ~ ~ ~ ~ ~ . ~ ~ ~ . ~ ~ ~ . ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ 233 Chapter 10. THE SOCIO-PSYCHOLOGICAL DIMENSIONS OF DECXS XON-MAKERS AS XNPORMATXON PROCESSORS ~ ~ ~ ~ ~~ e o ~~ ~~ ~ ~ ~~ ~ ~ ~~ ~ ~ ~~ ~~ ~ ~ ~~ ~~ ~ ~ ~~ 26 2 PART m. mSCLUSIOSS AND RaaOMmNDATIOSS CHAPTER 11 ~ THE CONCLUSION: A SUMMARY OF TH E RESULTS ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ 2 84 CHAPTER 12. THE HNl'AII FXSHING AUTHORITY. ~ ~ ~ o ~ o e o ~ i ~ o ~ ~ o304 MRT V APPBNDZCES APPENDXX A. SURVEY OF HAWAIIAN FISHERS... ~.... ~ ~~ ~~ ~ ~ e ~ ~ .321 APPENDXX B ~ THE DOGMATIS& RXG XDITY ATTRIBUTES OF FISHERY-SECTOR DECXS IONMAKERS ~ ~ ~ ~ ~ ~ ~ ~ . ~333 APPENDIX C INFORMATION NETWORK OF FEDERAL AND STATE FISHERY-SECTOR ADMIN XSTRATORS e ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ 3 52 MR% VX BIBLIOGRAPHY BIBLIOGRAPHY OF CITED WORKS ~ ~ ~ . ~ ~ ~~ ~ ~ ~ ~~ ~ ~ ~ ~ e ~ ~ ~~ ~i ~ ~~ ~ ~ ~ ~374 LIST OF TABLES 2.3, Poreign f ishing vessels operating off U.S. coasts during 1973.................... 27 2.2 List of damaged or threatened species...... 29 3.1 Landings of same commercially significant species: 1960t 1970' 1980...... 83 3.2 Actual and potential landings of commercially valuable f isheries in Hawaii o t ~ ~ ~ ~~ ~~ ~~ ~ ~ ~~ ~ ~ ~~ ~ ~ ~~ ~ ~ ~~ ~~ ~e ~ ~ ~~ ~ ~ 8 9 8,1 Fishery representatives and their consti tuenci es............................. 226 9.1 Composi tion of the WPRFNC..................241 10.1 High-low matrix of dogmatism and rigidity scores............................267 10.2 Prof ile of f ishery influentials............268 l2 ~ l Landing tax schedule.......................310 12.2 Number of undocumented vessels............. 311 12.3 Proposed annual fees..... ~.................312 A. 1 Distribution of survey population..........321 A.2 Survey population reached by telephone.....322 A. 3 Classes of the sample population...........323 A 4 Percentage of fishers who are captains on the five main islands...................324 A.5 Distance traveled to fishing grounds by commercial fishers................,.....324 A.6 Commercial fishers on the five main slandse~ e ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ 325 A.7 Work status of commercial fishers........,.326