Ecosystem-based fishery management : a report to Congress by the Ecosystem Principles Advisory Panel /

Abstract

Ecosystem-based management can be an important complement to existing fisheries management approaches. When fishery managers understand the complex ecological and socioeconomic environments in which fish and fisheries exist, they may be able to anticipate the effects that fishery management will have on the ecosystem and the effects that ecosystem change will have on fisheries. However ecosystem-based management cannot resolve all of the underlying problems of the existing fisheries management regimes. Absent the political will to stop overfishing, protect habitat, and support expanded research and monitoring programs, an ecosystem-based approach cannot be effective. A comprehensive ecosystem-based fisheries management approach would require managers to consider all interactions that a target fish stock has with predators, competitors, and prey species; the effects of weather and climate on fisheries biology and ecology; the complex interactions between fishes and their habitat; and the effects of fishing on fish stocks and their habitat. However, the approach need not be endlessly complicated. An initial step may require only that managers consider how the harvesting of one species might impact other species in the ecosystem. Fishery management decisions made at this level of understanding can prevent significant and potentially irreversible changes in marine ecosystems caused by fishing. Recognizing the potential of an ecosystem-based management approach to improve fisheries management, Congress requested that the National Marine Fisheries Service (NMFS) convene a panel of experts to: 1) assess the extent to which ecosystem principles are currently applied in fisheries research and management; and 2) recommend how best to integrate ecosystem principles into future fisheries management and research. In response, NMFS created the National Marine Fisheries Service Ecosystem Principles Advisory Panel (Panel). WHAT BASIC ECOSYSTEM PRINCIPLES, GOALS AND POLICIES CAN BE APPLIED TO FISHERIES MANAGEMENT AND RESEARCH? To guide our deliberations, we developed a set of eight ecosystem operating principles (Principles) with societal goals for ecosystems (Goals), and a set of six management policies (Policies). These Principles, Goals and Policies were used to evaluate the current application of ecosystem-based fisheries management and to develop recommendations for further implementation of such approaches. BASIC ECOSYSTEM PRINCIPLES, GOALS AND POLICIES Based on the Panelâs experience and review of the fisheries ecosystem literature, we suggest that the following Principles, Goals and Policies embody key elements for ecosystem-based management of fisheries. Principles ⢠The ability to predict ecosystem behavior is limited. ⢠Ecosystems have real thresholds and limits which, when exceeded, can effect major system restructuring. ⢠Once thresholds and limits have been exceeded, changes can be irreversible. ⢠Diversity is important to ecosystem functioning. ⢠Multiple scales interact within and among ecosystems. ⢠Components of ecosystems are linked. ⢠Ecosystem boundaries are open. ⢠Ecosystems change with time. Goals ⢠Maintain ecosystem health and sustainability. Policies ⢠Change the burden of proof. ⢠Apply the precautionary approach. ⢠Purchase âœinsuranceâ against unforeseen, adverse ecosystem impacts. ⢠Learn from management experiences. ⢠Make local incentives compatible with global goals. ⢠Promote participation, fairness and equity in policy and management. TO WHAT EXTENT ARE ECOSYSTEM PRINCIPLES, GOALS AND POLICIES CURRENTLY APPLIED IN RESEARCH AND MANAGEMENT? The Panel considered a management system based on the ecosystem Principles, Goals and Policies, as a framework with which to evaluate the current application in U.S. marine fisheries management and research. This model was then compared to the current state of research and management. We conclude that NMFS and the Regional Fishery Management Councils (Councils) already consider and apply some of the Principles, Goals and Policies outlined above, but they are not applied comprehensively or evenly across Council jurisdictions, NMFS Regions, or ecosystems. The fact that the Principles are not applied consistently in U.S. fisheries management and research should not be interpreted as reluctance or intransigence on the part of these entities to adopt ecosystem approaches. Rather, these agencies lack both a clear mandate and resources from Congress to carry out this more comprehensive, but ultimately more sustainable approach. Furthermore, the ecosystem-based management of fisheries is a relatively new concept and there are considerable gaps in knowledge and practice. HOW CAN WE EXPAND THE APPLICATION OF ECOSYSTEM PRINCIPLES, GOALS AND POLICIES TO FISHERIES RESEARCH AND MANAGEMENT? Several practical measures can be implemented immediately to make U.S. fisheries management and research more consistent with the ecosystem Principles (see Summary of Recommendations). These measures comprise an incremental strategy for moving toward ecosystem-based fisheries research and management. Councils should continue to use existing Fishery Management Plans (FMP) for single species or species complexes, but these should be amended to incorporate ecosystem approaches consistent with an overall Fisheries Ecosystem Plan (FEP). The FEP, to be developed for each major ecosystem under Council jurisdiction, is a mechanism for incorporating the Principles, Goals and Policies into the present regulatory structure. The objectives of FEPs are to: ⢠Provide Council members with a clear description and understanding of the fundamental physical, biological, and human/institutional context of ecosystems within which fisheries are managed; ⢠Direct how that information should be used in the context of FMPs; and ⢠Set policies by which management options would be developed and implemented. Fisheries management based on the ecosystem Principles, Goals and Policies must be supported by comprehensive research. Significant ecosystem research is now conducted by the National Oceanic and Atmospheric Administration (NOAA) and other agencies, as well as the academic community. This research is critical and must continue, but must expand into several key areas. First, we must better understand the long-term dynamics of marine ecosystems and how they respond to human-induced change, particularly changes brought about by fishing. Second, we must develop governance systems which have ecosystem health and sustainability, rather than short-term economic gain, as their primary goals. THE FUTURE OF ECOSYSTEM APPROACHES IN U.S. FISHERIES MANAGEMENT Fisheries scientists and managers are beginning to grasp the potential of ecosystem-based fishery management to improve the sustainability of fisheries resources. Given the depressed state of many U.S. fisheries, this awareness must be expanded and actions taken to implement this approach. Our management recommendations and research actions provide a pragmatic framework within which to apply the ecosystem Principles, Goals and Policies. The success of this approach depends on full implementation of measures already underway as a result of the passage of the Magnuson-Stevens Fishery Conservation and Management Act (MSFCMA) (NMFS 1996), particularly the essential fish habitat (EFH) requirements and strengthened national standards. The recommendations contained in this report provide the required next steps. While some of the recommended actions can start immediately, we believe that legislation is required to implement measures like the FEP. Given that legislative processes may require three to five years to enact the proposed regulations, we recommend interim actions by the Secretary of Commerce to develop demonstration FEPs and to encourage voluntary adoption by management Councils of the Principles, Goals and Policies proposed herein. We also are aware that these new tasks will require additional human and financial resources for full implementation. The benefits of adopting ecosystem-based fishery management and research are more sustainable fisheries and marine ecosystems, as well as more economically-healthy coastal communities. We have identified the actions required to realize these benefits. We urge the Secretary and Congress to make those resources available. SUMMARY OF RECOMMENDATIONS Fisheries management and policy recommendations are directed toward Congress for implementation by NMFS and the Councils. Interim measures and research recommendations are directed toward the Secretary of Commerce for implementation by NMFS and other appropriate agencies. Develop a Fisheries Ecosystem Plan (FEP) Require each Council to develop an FEP for the ecosystem(s) under its jurisdiction. The FEP is an umbrella document containing information on the structure and function of the ecosystem in which fishing activities occur, so that managers can be aware of the effects their decisions have on the ecosystem, and the effects other components of the ecosystem may have on fisheries. Each FEP should require the Councils to take, at least, the following eight actions: 1. Delineate the geographic extent of the ecosystem(s) that occur(s) within Council authority, including characterization of the biological, chemical and physical dynamics of those ecosystems, and âœzoneâ the area for alternative uses. The first step in using an ecosystem approach to management must be to identify and bound the ecosystem. Hydrography, bathymetry, productivity and trophic structure must be considered; as well as how climate influences the physical, chemical and biological oceanography of the ecosystem; and how, in turn, the food web structure and dynamics are affected. Transfers across ecosystem boundaries should be noted. Within each identified ecosystem, Councils should use a zone-based management approach to designate geographic areas for prescribed uses. Such zones could includ