Why does it take so long to implement EBFM?

1. Why does it take so long to implement EBFM? Dave Fluharty, SMA UW On the Ground & In the Water University of Washington May 1, 2009

2. FOCUS ON ECOSYSTEMS EXPLODES! Livingston 2002

4. Evaluation of EBM for Fisheries in 33 Countries Pitcher et al. 2008

5. THE SAGA OF Ecosystem Principles Advisory Panel PRECURSOR – NMFS ECOSYSTEM TEAM 1986-87 REPORT – CHANGE OF ADMINISTRATIONS [long time passing] PRECURSOR – ISLANDS INSTITUTE GULF OF MAINE CONFERENCE ON EBM 1994/5 LED TO 1996 MSA REAUTHORIZATION LANGUAGE BY SEN. SNOWE

6. ECOSYSTEM PRINCIPLES ADVISORY PANEL REPORT TO CONGRESS 1999 A team of 20 scientists was convened to advise Congress on use of ecosystem principles in fishery management– late 2007. Chief recommendation was to develop regional Fishery Ecosystem Plans

7. ECOSYSTEM PRINCIPLES ADVISORY PANEL [EPAP] • Chair, David Fluharty University of Washington /NPFMC • Pete Aparicio Texas Shrimpers Association /GOMFMC • Chris Blackburn Alaska Groundfish Data Bank • George Boehlert NMFS/Pacific Fisheries Environmental Laboratory • Felicia Coleman Florida State University /GOMFMC • Philip Conkling Island Institute • Robert Costanza University of Maryland • Paul Dayton University of California San Diego • Robert Francis University of Washington • Doyle Hanan California Department of Fish and Game • Ken Hinman National Coalition for Fisheries Conservation • Ed Houde University of Maryland • James Kitchell University of Wisconsin • Rich Langton Maine Department of Natural Resources • Jane Lubchenco Oregon State University • Marc Mangel University of California Santa Cruz • Russell Nelson FMFC/ GOMFMC/ SAFMC • Victoria O’Connell Alaska Department of Fish and Game • Michael Orbach Duke University • Michael Sissenwine NMFS, Northeast Fisheries Science Center

8. EPAP CAVEATS • WE DO NOT HAVE COMPLETE UNDERSTANDING OF ECOSYSTEMS • WE CANNOT PREDICT CHANGE IN ECOSYSTEMS AT PRESENT • ECOSYSTEMS EVOLVE OVER TIME • MANAGEMENT INSTITUTIONS ARE NOT CONFIGURED TO ECOSYSTEM SCALE

9. High Bar/Low Bar Perfect information totally integrated management Status quo? Completely isolated single species/issue management

10. PREREQUISITES OF EBFM • EFFECTIVE CONTROL OF FISHERIES BY MANAGEMENT SYSTEM • ABILITY TO ENFORCE REGULATIONS • ABILITY TO MONITOR HARVESTS -INCLUDING BYCATCH • ABILITY TO CONTROL CAPACITY TO FISH

11. OPERATING RULES EPAP RECOMMENDATIONS MUST BE PRACTICAL AND PRODUCE CHANGE IN CONTEXT OF CURRENT MANAGEMENT INSTITUTIONS MORE THAN NEPA NO NEW LEGISLATIVE MANDATE

12. EPAP ECOSYSTEM “PRINCIPLES” • ABILITY TO PREDICT ECOSYSTEM BEHAVIOR IS LIMITED • ECOSYSTEMS HAVE THRESHOLDS AND LIMITS AFFECTING ECOSYSTEM STRUCTURE • IF LIMITS ARE EXCEEDED, CHANGES CAN BE IRREVERSIBLE • DIVERSITY IS IMPORTANT TO ECOSYSTEM FUNCTIONING [DEBATED]

13. ECOSYSTEM “PRINCIPLES” [cont.] • MULTIPLE TIME SCALES INTERACT IN AND AMONG ECOSYSTEMS • COMPONENTS OF ECOSYSTEMS ARE LINKED • ECOSYSTEM BOUNDARIES ARE OPEN • ECOSYSTEMS CHANGE WITH TIME

14. EPAP ASSESSMENT OF USE OF PRINCIPLES IN U.S. • PREREQUISTES NOT MET IN MANY US FISHERIES [IMPROVING] • ECOSYSTEM PRINCIPLES ARE SOMETIMES USED IN U.S. FISHERY MANAGEMENT. • EXAMPLES OF USE ARE GENERALLY LIMITED IN SCOPE

15. What is Ecosystem-based Management? “Using what is known about the marine ecosystem to inform management decisions.” -adapted from the Ecosystem Principles Advisory Panel, 1999

16. ECOSYSTEM BASED MANAGEMENT – A PROCESS Extractive Use No Use Prohibited Use Ecosystem Modified – Resilient? Restored? Ecosystem Modified Ecosystem Pristine

17. EPAP POLICY ADVICE • CHANGE BURDEN OF PROOF • APPLY PRECAUTIONARY PRINCIPLE • PURCHASE “INSURANCE” • LEARN FROM MANAGEMENT EXPERIENCE • USE INCENTIVES TO ACHIEVE GOALS • PROMOTE FAIRNESS AND EQUITY

18. ECOSYSTEM MANAGEMENT GOALS MAINTAIN ECOSYSTEM HEALTH AND SUSTAINABILITY

19. FISHERIES ECOSYSTEM PLAN [FEP] - PURPOSE • PROVIDE CLEAR DESCRIPTION OF ECOSYSTEM AND SOCIAL ECONOMIC CONTEXT • IMPROVE HOW ECOSYSTEM AND SOCIETAL INFORMATION IS USED IN MANAGEMENT • SET POLICIES BY WHICH MANAGEMENT OPTIONS ARE DEVELOPED AND IMPLEMENTED

20. FISHERY ECOSYSTEM PLAN CONTENTS • DELINEATE GEOGRAPHIC EXTENT OF ECOSYSTEMS FOR MANAGEMENT • DEVELOP CONCEPTUAL MODEL OF THE FOOD WEB [DYNAMICS] • DESCRIBE HABITAT NEEDS OF DIFFERENT LIFE HISTORY STAGES OF “SIGNIFICANT FOOD WEB” [EFH]

21. FEP CONTENTS [cont.] • CALCULATE TOTAL REMOVALS AND RELATE TO ECOSYSTEM • ASSESS UNCERTAINTIES AND HOW THEY ARE ADDRESSED BY MANAGEMENT • DEVELOP INDICES OF ECOSYSTEM HEALTH AS MANAGEMENT GOAL

22. FEP CONTENTS [cont.] • DESCRIBE LONG-TERM MONITORING DATA AND HOW THEY ARE USED • ASSESS IMPACTS OF ELEMENTS OUTSIDE CONTROL OF FISHERY MANAGEMENT AUTHORITY

23. MSA IMPLEMENTATION • BESIDES EMPHASIS ON STOCK ASSESSMENT MSA 1996 EMPHASIZED OTHER “BUILDING BLOCKS” FOR EBFM • BRING FISHERIES INTO FULL COMPLIANCE WITH ENVIRONMENTAL ASSESSMENT [NEPA] REQUIREMENTS • DESIGNATE ESSENTIAL FISH HABITAT [EFH] • REDUCE BYCATCH • ETC.

24. The Alaskan Ocean Ecosystem

25. ALASKA Region EVALUATION Witherell, D., C. Pautzke and D. Fluharty 2000. An ecosystem-based approach for Alaska groundfish fisheries. ICES Journal of Marine Science, 57:771-777

26. IMPLEMENTATION - NEPA EXAMPLE FROM NPFMC REGION: SUPPLEMENTAL PROGRAMMATIC ENVIRONMENTAL IMPACT STATEMENT GROUNDFISH PSEIS 9 VOLUMES + EXECUTIVE SUMMARY 7000+ PAGES WEIGHT 41.5 LBS./ 19 KG 2003

27. EPAP IMPLEMENTATION • NATIONAL LEVEL [Illustrative] Senate Hearings 1999 • STOCK ASSESSMENT/ECOSYSTEM- BASED WORKSHOP [APRIL 2000] • NOAA CHESAPEAKE BAY FEP [JULY 2000] • MAFAC/NMFS ADVISORY PANEL [SEPTEMBER 2001 - 2003] • AFS ECOSYSTEM PANEL [AUGUST 2002] • MOTE SYMPOSIUM [OCTOBER 2002] • NATIONAL CENTER FOR ECOSYSTEM ANALYSIS AND SYNTHESIS – MODELS • FISHERY ECOSYSTEM PLAN DEMO [2003]?

28. IMPLEMENTATION NATIONAL • CONGRESS MSFCMA REAUTHORIZATION • HEFLEY BILL 1999 • GILCHREST BILL 2000 • SNOWE BILL 2000 • KERRY BILL 2000 • FARR BILL 2001 GILCHREST BILL 2002 [MARK-UP JUNE 2002] KERRY DRAFT 2002 [WORKING DRAFT]. ETC. STEVENS – SCHEDULE FOR 2005 ULTIMATELY REAUTHORIZED 2006.

29. EBFM IMPLEMENTATION - REGIONAL • NPFMC – 1994 ECOSYSTEM CONSIDERATIONS/ COMMITTEE/ ALEUTIAN ISLAND 2005 + FEP • CHESAPEAKE BAY FEP – 2000/2006+ AGREED BY 5 STATES • WPFMC – ARCHIPELAGIC FEP 2004+ • SAFMC/CFMC/GOM – $2.0 MILLION FUNDING FOR STARTING FEP 2004+ • NEFMC – DELINEATE BOUNDARIES 2005 • PFMC – 2006+ START FEP PLAN PROCESS

30. FURTHER EFFORTS national --- Executive Order on MARINE PROTECTED AREAS, May 26, 2000 --- Oceans Act 2000 -- US Oceans Commission Report 2003/04 --- PEW OCEAN COMMISSION 2003

31. Reasons Why EBFM Not Implemented • Lack of adequate science? • Lack of a mandate – conflicting mandates? • Good sectoral management is adequate? • Inertia? • Don’t know how • Fear the unknown • Feuding scientists/ objectives? • Too complex? • Transaction costs too high? • Can’t afford it? • Lack of political will? • Need for EBFM training and communication?

32. Lack of Adequate Science?

33. STATUS OF SOCIAL SCIENCES IN NOAA BUDGET 24.7 Million= 0.6% 3.4 Billion Source, Wiley 2008

34. NOAA SOCIAL SCIENCE STAFFING Source, Wiley 2008

35. Lack Mandate/ Conflicting Mandates? Not required Not prohibited Best Available Science

36. Thanks to Steve Murawski …XI-XV How to Implement Ecosystem Management Ecosystem Approaches to Mgt. There is no manual for what we are attempting! Thanks to Steve Murawski

37. U.S. COMMISSION ON OCEAN POLICY REPORT 2004 “DOUBLE THE AMOUNT OF FUNDING” “CREATE REGIONAL OCEAN ECOSYSTEM COUNCILS” “REFINE THE EXISTING FISHERY MANAGEMENT SYSTEM…. TO STRENGTHEN THE USE OF SCIENCE AND TO MOVE TOWARD A MORE ECOSYSTEM-BASED MANAGEMENT APPROACH” ESTABLISH NATIONAL OCEAN COUNCIL REORGANIZE NOAA

38. President’s Council of Advisors US COMMISSION ON OCEAN POLICY ROC Concept Policy Context Understanding ROG 3 Components of ROG 3-Step Analytical Framework Test of Analytical Framework Conclusions National Ocean Council (Ch. 4) Regional Federal Coordination (Ch. 5) Mammals (Ch. 20) Stewardship Advice, Collaboration Governance Policy Development, Coordination, Facilitation Health (Ch. 23) Coral (Ch. 21) Offshore Management Regime (Ch. 6) Fish (Ch. 19) Regional Ocean Council* (Ch. 3,5) Habitat (Ch. 11) Ecosystem Assessments (Ch. 5) Shoreland Development (Ch. 9) Information Regional Ocean Information Center Coastal Zone Management (Ch. 9) Offshore Uses (Chs. 22, 24) Key Broad guidelines; coordination; communication Ocean Data (Ch. 28) IOOS (Ch. 26) Scientific Knowledge (Ch. 25) Education (Ch. 8) Functions Policy Coordination * Voluntary and flexible, formed by Governors and other locally-based interests (Hershman 2005) Collaboration & Assistance

39. Good sectoral management is adequate?

40. Ecosystem-based Management approaches Single sector management Ecosystem oriented single sector management Integrated regional multi-sector management • Ecosystem Approach to Fisheries (EAF) • Start with the fishery • - add issues of ecosystem impact • Ecosystem Based Fisheries Management (EBFM) • Start with the ecosystem services • add fishing Ecosystem Based management (EBM) - Regional integrated management, multiple use management • Traditional fishery management • target species • single species or multi-species Modified from Sainsbury ESD policy, Fisheries Act and AFMA fisheries Australia’s Oceans Policy and Environmental Act

41. Steller sea lion bull. Photo: NMFS Photo by USACE, http://www.epa.gov/owow/oceans/ regulatory/dumpdredged/dredgemgmt.html Exploratory drilling in the Beaufort Sea http://www.mms.gov/alaska/fo/INDEX.HTM Subsistence salmon http://www.travelalaska.com http://www.epa.gov/owow/oceans/cruise_ships/ Common murres USFWS Pollock trawl near Kodiak, Alaska. Photo: Mindy Jones, NMFS Valdez Cotainer Terminal http://www.ci.valdez.ak.us/port/marine.html

43. Inertia? • Don’t know how • Fear of the unknown

45. FACTORS AFFECTING PACE OF ADAPTATION OF EBFM • PRICES [OF INPUTS, e.g., FUEL] • REVENUE [COMPETITION] • CONFLICTS [e.g. WARS] • TECHNOLOGY [SOLVE/CREATE PROBLEMS] • CHANGING HUMAN VALUES • NATURAL DISASTERS • CLIMATE VARIABILITY/CHANGE

46. Feuding scientists OR objectives?

49. Too complex?

50. Generalized Jurisdiction in Alaska’s Marine Waters and Coastal Zone DNR Oil and Gas (marine-based) MMS Oil and Gas (marine-based) US FWS Wildlife refuge mgmt US FWS Marine mammal protection Migratory birds NOAA Fisheries Commercial Fishing ACOE Navigation maintenance Ports and harbors DNR Coastal Development Anadromous fish habitat protection Marine mammal protection ACOE Dredge spoil dumping EPA Discharges to waters Ocean dumping DEC Discharges to waters ADF&G Commercial fishing Recreational fishing State waters Federal waters State-owned submerged lands US EEZ Mean Low Tide Mean High Tide 200 nm 3 nm