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The story of the Southern Gulf of St.-Lawrence snow crab fishery

The story of the Southern Gulf of St.-Lawrence snow crab fishery. Prepared by EXMAR inc Fisheries Management Consultant Shippagan, N.B. Presented by L’Association des crabiers acadiens Les Crabiers du nord-est . The fishing fleet’s historical profile.

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The story of the Southern Gulf of St.-Lawrence snow crab fishery

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  1. The story of theSouthern Gulf of St.-Lawrencesnow crab fishery Prepared by EXMAR inc Fisheries Management Consultant Shippagan, N.B.

  2. Presented by L’Association des crabiers acadiens Les Crabiers du nord-est

  3. The fishing fleet’s historical profile • Approximately 700 fishers from the Acadian Peninsula in NB, from the Gaspé Peninsula and the Magdalene Islands in QC and from Cap Breton in NS : • Prov. Licences Fishers • NB 81 446 • QC 47 259 • NS211 • Total 130 716

  4. Its’ biomass fluctuates according to a still unexplained natural cycle Phases of notable abundance increases are followed by periods of significant stock decline The main characteristic of thesnow crab stock

  5. Who are the snow crab fishers They are former groundfish fishers. They started this new fishery in the early 60’s following the first collapse of the cod and redfish stocks in the Southern Gulf of St.-Lawrence The vast majority of the 130original family operated fishing enterprisesare still active in the Area 12 snow crab fishery today

  6. Who are the snow crab fishers In 1978, DFO stopped issuing new snow crab licenses in their fishing territoryknown as Area 12 At the same time, the DFO proceeded to cut the edges of their fishing territory so that 6 new smaller Fishing Areas could be established along the coasts of Quebec, Cap Breton, and, later, Prince-Edward-Island.

  7. 13 14 16 15 17 NF QC 12 NB NS

  8. In 1978 Area 13: 49 licenses Area 14: 21 licenses Area 15: 8 licenses Area 16: 38 licenses Area 17: 22 licenses Total: 138 licenses

  9. In 1979 Area 18: 31 licenses Area 19: 79 licenses Total: 110 licenses

  10. 13 14 16 15 17 19 18 NF QC 12 NB NS

  11. 13 14 16 15 17 20 21 22 19 18 23 24 NF QC 12 NB NS

  12. In 1985 Areas 25 and 26: 30 licenses

  13. 13 14 16 15 17 20 25 26 21 22 19 18 23 24 NF QC 12 NB NS

  14. The « boom and bust » period From 1979 onward, the crab industry will boom for a short while. The Japanese buyers are very active alongside a modern fleet of fishing vesselsand processing plants. Between 1978 and 1982, catches increased rapidly from 10 500 mt to 31 500 mt

  15. The « boom and bust » period • At the time, the DFO managers argued that these ever increasing catch rates testified to an ever increasing abundance of crab on the fishing grounds • The fishermen disagreed with this assessment and ascribed their abundant catches to the improved performance of their fishing vessels and fishing gear

  16. The « boom and bust » period The fishers’ assessment was eventually proven right by DFO’s own scientists in 1992: “The increase in landings from 1978 (10 462tm)to 1982 (31 582 tm) can be ascribed to this expansion and to a more efficient harvestingof the available resource rather than an increase of the stock biomass.” Technical Report No. 1827F, CAFSAC,1992

  17. The « boom and bust » period • This erroneous perception of an abundant biomass of crab by DFO managers led to the over-exploitation which in turn led to a stock collapse in 1989 • From 31 500 tm in 1982, catches declined to25 000 tm in 1985 and shrunk to a mere8 000 tm in 1989 • In the spring of that year, DFO managers finally decided to close the fishery once a majority of crab fishermen had voluntarily put an end to their fishing activities

  18. Rebuilding the stockand the industry • In 1990, the crabbers willingly accepted the challenge of rebuilding the stock and their fishery • Strong conservations measures were established based upon a strict control of the fleet’s fishing capacity • The number of licenses was frozen and the TAC was divided into fixed individual shares between the existing license holders

  19. Rebuilding the stockand the industry The crab fleet supported innovative stock assessment/protection activities as well as enhanced monitoring of their fishery Between 1994 and 2002, these local entrepreneurs invested over 10 millions $ in support of these measures

  20. Rebuilding the stockand the industry For its part, DFO agreed to : • Incorporate crabbers’ know-how and influence in the management of the stock and of their fishery • Establish a moratorium on snow crab fishing licenses in Area 12

  21. The 1990 snow crab agreement • The crab resource was divided into fixedindividual quotas • TAC was not to exceed 70% of the lowest scientific estimate • Landings were to be monitored independently at dockside • Fishery would close when catches reach 20% of molting crab

  22. Distribution of individual quotasin the Area 12 snow crab fishery Negotiations were highly structured No fewer than 6 different sharing formulas tabled by DFO

  23. Distribution of individual quotasin the Area 12 snow crab fishery • Difficult and intricate negotiations took place between : • Those who favored competitive fisheries • Those who favored individual quotas • The fishers with large historical catches • The fishers with small historical catches

  24. Distribution of individual quotasin the Area 12 snow crab fishery The following two examples reveal the extent of the snow crab sharing process implemented within the Area 12 fishery in 1990. Both cases presented hereare those of fishers who are still activein the Area 12 crab fishery today.

  25. Distribution of individual quotasin the Area 12 snow crab fishery • At the outset of the negotiations: • Fisher B with a quota history six (6) times larger than Fisher A: • Fisher A held 66, 000 lbs • Fisher B held 380, 000 lbs

  26. Distribution of individual quotasin the Area 12 snow crab fishery • At the end of the negotiations: • Fisher A’s share had increased by 224% • He now held 148, 000 lbs • Fisher B’s share had decreased by 45% • He now held 210 000 lbs

  27. In 1993, Minister Crosbie stated: “Following the success of IQs under the 1991-92 management plan, a five-year IQ plan was established with management measures similar to those of last yaer. The move to a five-year plan is supported by industry.

  28. In 1993, Minister Crosbie stated: The industry should be acknowledged for its commitment to preserving this important resource and promoting effective management of the fishery.” -News release dated April 8, 1993-

  29. Return of stock abundance in 1994 The crab fleet funds DFO’s scientific research program The crab fleet sets up a fund for cod fishers under moratorium DFO assigns new fishing sub zones in Area 12 • (in agreement with the crab fleet)

  30. 13 14 16 15 C A 17 D B 20 25 26 21 22 19 18 23 24 NF QC 12 NB NS

  31. In 1994 Area 12 A: 10 licenses Area 12 B: 8 licenses Area 12 C: 5 licenses Area 12 D: 531 licenses Total 554 licenses

  32. The 1995 crisis The first crab lottery draw : • Numerous temporary allocations of 10 000 lbs each are made available for the draw • Additional exploratory fishing areas(E and F) are imposed in Area 12 • (without the crab fleet’s consent)

  33. 13 14 16 15 C A D 17 B E F 20 25 26 21 22 19 18 23 24 NF Qc 12 NB NS

  34. In 1995 Area E: 8 licenses Area F:16 licenses Total 24 licenses

  35. Minister Tobin’s position in 1995: “Conservation remains our principal goal.We will ensure that the resource and the viability of the existing fleets are not threatened by a permanent shift in fishing effortfrom one fishery to another.

  36. Minister Tobin’s position in 1995: …In the past, such permits were allowedto become a permanent part of the fisheryto which they applied. This is not the case in this instance. These seasonal temporary permitswill expire at the end of 1995 and will not be renewed in future years.” - News release April 13, 1995 -

  37. Minister Mifflin’s position in 1996: Temporary permits are reissued… The crab and shrimp fleets fear forthe future of their fishery

  38. First partnership agreements Area 12 snow crab agreement of 1997 Gulf of St.-Lawrence shrimp agreementof 1998

  39. First partnership agreements • Crabbers and shrimppers agreed that: other fishers be given temporary access to their fisheries above a preset economic/ quota threshold. Financial contributions be given to DFO to fund conservation and protection as well as management activities .

  40. First partnership agreements • DFO agreed to: Incorporate fishers’ know-how in the management of their respective fisheries Comply with the 1990 permanent sharing agreements of individual quotas • No new permanent licenses/allocations will be issued

  41. The Marshall decision in 1999 • Crabbers believe that snow crab is not subjected to the Halifax Treaties: The snow crab fishing grounds are located outside the traditional Micmac and Malecite territories Snow crab is not a specie that was fished by the First Nations at the time the treaties were signed

  42. The Marshall decision in 1999 • However, they agree to integrate First Nations fishers in their fishery, as long as: Existing commercial crab licenses (along with the vessels) are acquired on a voluntary basis The First Nations fish their allocations themselves

  43. Situation at the end of 2002 • The 1990 the snow crab agreement has held for 12 years • The 1991 the Gulf shrimp agreement has held for 11 years No new “permanent” license or allocation of crab or shrimp has been granted since 1990

  44. Second partnership proposals • Same proposals are made to DFO by the crab fleet and the shrimp fleet: They propose that new temporary access be granted to other fishers above a preset economic or quota threshold They propose financial contributions from the crab and the shrimp fleets towards the funding of their fisheries’ scientific, conservation, protection as well as management activities .

  45. The 2003 crisis Fisheries and Oceans Canada honors the shrimp fleet’s proposal rejects the snow crab fleet’s proposal

  46. The 1990snow crab agreement is rejected Numerous non crabbers are given a permanent share of the Area 12 snow crab fishery Fishing over-capacity is install in the absence of any long term sustainability assessment and despite risky fluctuations in stock abundance.

  47. The 1991shrimp agreement is honored No permanent Gulf shrimp licenses are issued even though continuous landings increases were registered annually; from 13 000 tm in 1992 and 28 000 tm in 2003

  48. The snow crabI.Q. system of management is discredited Each crabber lost 26.5% of his individual share (without compensation) 10,35% to the First Nations • (5,44% buy back + 10,35%) = 15,80% 12,64% to the lobster and the ground fish fleets 3,37% to the inshore fishers from Nova Scotia (Area 18)

  49. DFO’s shrimpI.T.Q. system of management is honored No permanent lost of individual quota is sustained by any shrimp vessel; DFO honors all Individual shares

  50. The Minister rejects a private/public partnership offer from the crab fleet worth$2 500 000 annually The Minister honors a private/public partnership offer from the shrimp fleet worth $ 140, 000 annually

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