West Coast Trawl Catch Shares Development

West Coast Trawl Catch Shares Development

How did we get here and where do we go now?Lessons Learned

Pacific Ground fish Basics: The ResourceFederally managed

Ground fish FMP covers over 90 speciesRockfish 64 species, 5 overfishedFlatfish 12 species, 1 overfishedRoundish 6 species, 1 overfishedSharks and SkatesOther (ratfish, etc)

Management Driven By Weak Stocks

Overfished Species

Widow RockfishCanary RockfishYellow eye RockfishDark blotched RockfishBoccaccioCow codPacific Ocean PerchPetrale Sole

Long lived

Rebuilding schedules vary from soon to be completed (widow rockfish) to the other extreme of yellow eye (2087 at least 2 generations of fishermen away)..

Severely curtail the catches of healthy stock

Petrel just declared over fished - money fish3Pacific Ground fish Basics: Fisheries SectorsTribalNon TribalCommercial Limited EntryTrawlFixed GearCommercial Open AccessRecreational

Trawl Fishery BasicsTwo distinct fisheries, 4 sectorsNon-whiting traditional bottomtrawlWhiting (mid-water)ShoresideMothershipCatcher ProcessorDrivers For Catch Share Development in Trawl FisheryBycatch ConcernsOverfished speciesRegulatory DiscardsPoor Economic PerformanceCost/Earnings Study showed on average zero profitDeclared a disaster in 2000OvercapitalizationBuyback sense would ease the initial allocation

Trawl Landings and Revenue DistributionTotal: 241,807 mtTotal: $81.1 millionNon whiting landings 9% Value 39%SS landings 35% Value 14%MS 20% Value 16%CP 36% Value 31%7Trawl Fleet177 trawl endorsed limited entry permitsApprox 120 vessels actively fish non whitingShore side whiting: approx 35 vessels, at least one third also fish in Mothership fisheryApprox 20 catcher vessels deliver to 5-6 mothershipsCatcher-processors 6-9 vessels participate annuallyCatch Statistics (2008)Landings (mt)Revenue (million $)Non whiting24,27131.5Shoreside whiting50,78711.58Mothership57,68513.16Catcher Processor109,06224.88Goals and ObjectivesOverarching Goal

Create and implement a capacity rationalization plan that increases net economic benefits, creates individual economic stability, provides for full utilization of the trawl sector allocation, considers environmental impacts, and achieves individual accountability of catch and bycatch Goals and ObjectivesProvide a mechanism for total catch accounting. Provide for a viable, profitable, and efficient groundfish fishery. Promote practices that reduce bycatch and discard mortality and minimize ecological impacts. Increase operational flexibility. Minimize adverse effects from an IFQ program on fishing communities and other fisheries to the extent practical. Promote measurable economic and employment benefits through the seafood catching, processing, distribution elements, and support sectors of the industry. Provide quality product for the consumer. Increase safety in the fisheryTimeline of Development2003 Council announces control date and establishes the Trawl IQ Committee2004 Began scoping very limited budget available2006 Phase one EIS development with some alternatives2007 Refined analysis Council received full funding for development of alternatives2008 Preliminary DEIS distributed for public comment in early fall, November Council adopts final preferred alternative, NMFS begins work on draft regs

Timeline for Development April 2009 Council makes final decisions on sector allocation (Amendment 21)June 2009 Council completes trailing actions and directs staff to complete DEIS and other necessary documentsSummer 2009 LE Permit holders received unofficial estimate of quota share allocationSept/Nov 2009 Council reconsiders and modifies allocation of canary rockfish to address unforeseen consequence

TimelineJanuary 2010 DEIS public comment period closedSecretary approves/disapproves program summer 2010Three rule draft/final regulations must be completed by fall 20101st rule: Collection of ownership data completed2nd rule: Regs for main body of program scheduled for deeming by Council at March meeting3rd rule: Regs for monitoring, cost recovery etcQuota application/issuance Fall 2010Program implemented Jan 1, 2011

Catch Share ProgramCatcher processor Continuation of Voluntary CoopMothership Cooperatives with annual processor (Mothership) affiliationShoreside Whiting and Non Whiting IFQ Program20% initial allocation of harvester quota to processors based on processing history for whitingNon whiting 90% to permit holders, initial allocation based on catch history with equal sharing of buyback history10% Adaptive Management Quota - IFQ ProgramConcerns and Related Program Design ElementsConcern Program Design ElementExcessive ConsolidationAccumulation Limits species specific, smaller for constraining stocksVessel use caps amount of quota pounds that can be put on one vesselExcessive ControlControl rules DivestitureCommunitiesAMPCFAs (in progress)Overfished SpeciesComplex initial allocation methodologyLow accumulation limitsCouncil encouraging risk pools100% catch accounting and monitoringNew EntrantsSmall divisions of quota shareAMPIFQ ProgramConcerns and Related Program Design ElementsConcernProgram Design ElementMinimize habitat impactsGear SwitchingProviding operational flexibility30 day to balance accountCarry over/underQS and QP can be leasedQS freely transferable after 2 year moratorium on transfers

Lessons learnedProgram design matters and can be overshadowed by initial allocation concernsImportant to bring back to goals and objectivesVisioning exercise: What do you want the fishery to look like in 10 years and how can catch shares be designed to help achieve that visionImportant that design committee have all relevant interests representedLessons LearnedDont wait to the end to plan effective monitoring/tracking program develop costs estimates and trade offs early on engage stakeholders in the design if responsibility to fund lies partially (or solely) with industry then they need to be included in designTake a holistic view and look at whether a ramp up approach is needed or a new system.important to avoid redundanciesLessons learnedProvide adequate financial and human resources throughout the development process a transition phase and then and beyondUnderstand that the program will not be perfect Is it moving in the right direction?Expect to be making changes to improveHow implementation of the Catch Share Policy could have helped west coast design processReduce technical and administrative impediments to designing catch share programResolving outstanding questions on application of MSA requirements to proposed design. Guidance onCommunity provisions in MSAProcessor allocation of harvester shares based on processing history guidance on when is/is not appropriateWhat exactly should be under the umbrella of 3% cap on cost recovery?Enforcement protocols relationship to efficiencies