Vision 2020: The Future of U.S. Marine Fisheries

**Final Report**

**of the**

**Marine Fisheries Advisory Committee**

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height="0.8868055555555555in"}

U.S. Department of Commerce

National Oceanic and Atmospheric Administration

December 2007

FOREWORD

The Marine Fisheries Advisory Committee (MAFAC) advises the Secretary of
Commerce on all living marine resource matters under the purview of the
Department of Commerce. MAFAC members evaluate and assess national
programs, recommend priorities, and provide their views on future
directions. MAFAC members have a wide range of expertise, including but
not limited to, commercial and recreational fishing, aquaculture,
seafood processing, seafood marketing and sales, consumer interests,
coastal communities, and environmental advocacy. MAFAC was established
in 1970 to serve as a federal advisory body, complying fully with the
Federal Advisory Committee Act.

[Introduction]{.underline}

In September 2006, the Assistant Administrator of NOAA's National Marine
Fisheries Service (NMFS) asked the Marine Fisheries Advisory Committee
(MAFAC) to prepare a report on the desired future state of U.S. Marine
Fisheries. The specific request from the Assistant Administrator to
MAFAC was "...to create, in clear, simple, non-jargon language, a
stakeholders' consensus on the desired future state of domestic and
international fisheries." This report is MAFAC's response. It is
organized into three sections:

*Section 1: Trends and their Impact on Marine Fisheries* that provides
context and reference points for comparison with the future;

*Section 2: MAFAC Findings* based on these trends; and

*Section 3: Summary* *Recommendations* regarding fulfillment of MAFAC's
vision of the future of our Nation's marine fisheries.

Appendices detailing the rationale behind the recommendations complete
the report.

[Section 1: Trends and their Impact on Marine Fisheries]{.underline}

Marine fisheries have been, are, and will continue to be important to
our Nation for a multitude of reasons. Marine fisheries provide
employment and recreational opportunities as well as a food source. The
passage of the Fishery Conservation and Management Act (FCMA) of 1976,
P.L. 94-265,[^1] (renamed in 1980 for the late Senator Warren Magnuson
and in 1996 to include Senator Ted Stevens) and the establishment in
1983 of the exclusive economic zone (EEZ) ushered in a new era of
federal fishery management. The United States has the largest EEZ in the
world, 3.4 million square nautical miles. In addition, the United
States' EEZ has a tremendous variety of fish stocks (in excess of 905
stocks[^2]) and other living marine resources.

The dynamics of marine fish populations are affected indirectly by
climate change, habitat availability, and water quality. They are also
affected directly by human factors such as fishing and environmental
degradation. Human fishing practices are affected by the dynamics of the
marine ecosystem and fluctuations in fish abundance. Thus, a complex
relationship exists between fish and fishermen that must be maintained
to foster the existence of both. At the intersection of these complex
interactions are fisheries managers who require high-quality
observations and well supported predictions about species status and
abundance. Accurate and precise biological, economic and social science
data is required for management decisions. Presently, concerns arise if
the biological, physical, social and economic data are deemed
insufficient for managing marine fisheries sustainably.[^3] The goal of
fisheries management is to assure sustainable marine fisheries. In the
simplest sense, sustainable use of a resource means that the resource
can be used indefinitely.

[]{.mark}

[TREND: Based on status of stocks assessments, global fisheries
production will most likely grow slowly, if at all, to
2020.]{.smallcaps}

Most assessments on the world-wide status of marine fisheries indicate
that on a species by species level, most species considered have reached
or are near maximum sustainable exploitation levels[^4]. Thus, wild
marine fisheries harvest which has peaked, at approximately 93 million
tons per year on a worldwide basis[^5], should not be expected to grow
significantly.

[TREND: The consumer demand for fish and shellfish continues to
grow.]{.smallcaps}

At the same time that marine fisheries harvest has plateaued or peaked,
global consumption of fish has doubled since 1973[^6]. Countries with
rapid population growth, rapid income growth and rapid urbanization tend
to have the largest increase in consumption of animal products including
fish. The developing world has seen such increases. Today, fish and
shellfish on average provide 25 percent of protein consumption in
developing countries and 13 percent in developed countries. China, where
income growth and urbanization are major factors, dominates consumption
of fish products.

[TREND: Seafood consumption is increasing in the U.S. on a per capita
basis.]{.smallcaps}

In 2006, Americans consumed 16.5 pounds (edible weight) per person, up
from 16.2 pounds per person in 2005 and 0.9 lb higher than the 10-year
average. Records were set in 2006 for per capita consumption of fillets
and steaks, and shrimp in all forms of preparation.[^7]

[TREND: Consumption, domestic and worldwide, is expected to
increase]{.smallcaps} [as the health benefits of a diet rich in seafood
protein become increasingly recognized.]{.smallcaps}[^8] This trend of a
rising demand for seafood was recently confirmed by a panel at the
annual meeting of the American Association for the Advancement of
Science (AAAS). The panel further noted that demand will continue to
exceed wild capture fisheries' ability to provide the fish meals
demanded by consumers.

[TREND: Although domestic wild-catch fish stocks are improving, domestic
demand for safe]{.smallcaps}[^9] [seafood will continue to exceed
domestic supply from wild stocks.]{.smallcaps} In the United States, the
domestic wild-catch of edible products is approximately 3.5 million
mt[^10], while current U.S. supply of edible products including imports
is more than 12.3 million mt. NOAA Fisheries Service statistics[^11]
reveal that more than 80 percent of our nation's fish stocks are already
at sustainable levels (with some yearly variation). Even if all domestic
fisheries were simultaneously managed to their long-term potential
yield, total supply would be increased by only another 3.1 million mt.

[TREND: The continuation of policies that do not address overcapacity
will plague both the domestic and foreign commercial harvesting
sectors.]{.smallcaps}  Excess fishing capacity (fishing capacity is the
ability to catch fish or fishing power) and overcapitalization
(capitalization, related to capacity, is the amount of capital invested
in fishing vessels and gear) reduce the economic efficiency of fisheries
and usually are precursors to overfishing. Overcapacity is difficult to
manage indirectly, resulting in management regimes that encourage costly
and unsafe race-to-fish competitions for limited fishery resources. In
2006, the U.S. fishing capacity of the existing fleet far exceeded the
target catch level of many stocks of fish. This overcapacity has reduced
economic efficiency and created a race for the fish. In addition, it has
negatively impacted the economic livelihoods of many coastal communities
dependent on marine fisheries. As harvesting costs continue to rise due
to inflation and increasing energy and other business expenses,
additional but necessary management restrictions could impact the
economic viability of our coastal communities.

The Magnuson-Stevens Fishery Conservation and Management Reauthorization
Act (MSRA) in 2006 provided new guidance on the use of Limited Access
Privilege programs that directly address the fishery conservation and
overcapacity reduction goals of the Nation. Additional new provisions
mandating catch limits and catch accountability should improve fish
stocks and enhance fishing opportunities.

[TREND: The marine recreational fishery sector will continue to grow as
our population grows, lives longer, and has more leisure
time.]{.smallcaps} Recreational fishing continues to be one of the most
popular outdoor sports. Anglers took nearly 93 million saltwater trips
in 2005. The increased size of the recreational fishing population
creates disputes over allocation of limited resources between commercial
fishermen and recreational anglers, and even within different sectors of
the recreational community. Technological innovations, however, will
continue to assist the survival rate in catch and release fisheries.

[TREND: The contribution of aquaculture to supply fish, crustaceans,
mollusks and other aquatic resources will continue to grow.]{.smallcaps}
Aquaculture will supply an increasing proportion of the world's seafood
supply. Globally, aquaculture has increased from 3.9 percent of total
fisheries production by weight in 1970 to 27.1 percent in 2000 and 43
percent in 2004.[^12] Aquaculture continues to expand more rapidly than
all other food-producing sectors. Worldwide, the sector has grown at an
average rate of 8.8 percent per year since 1970, compared with only 1.2
percent for capture fisheries and 2.8 percent for terrestrial farmed
meat production systems over the same period. Production from
aquaculture has greatly outpaced population growth, with per capita
supply from aquaculture increasing from 1.54 lb in 1970 to 15.6 lb in
2004, representing an average annual growth rate of 7.1 percent. Today,
our domestic aquaculture industry provides 1.5 percent of the US seafood
supply[^13]. While foreign aquaculture production contributes to an ever
increasing proportion of U.S. imports, particularly of shrimp, salmon,
tilapia and a variety of bi-valves and mollusks. Total U.S. aquaculture
production is about \$1 billion annually[^14] compared to worldwide
aquaculture production of about \$70 billion annually. According to the
UN Food and Agriculture Organization,[^15] global aquaculture production
will need to double by the year 2030 to maintain current worldwide per
capita consumption. An expanded U.S aquaculture industry can increase
the production of fish and shellfish to meet increasing domestic and
international demand, assist in fishery stock recovery via enhancement,
and decrease the U.S. seafood trade deficit.

[TREND: Demands will increase for additional data and science necessary
to support ecosystem-based management.]{.smallcaps} Humans are
components of the ecosystems they inhabit and use. Their actions on land
and in the oceans measurably affect ecosystems, and changes in
ecosystems subsequently affect humans. Understanding and modeling this
cycle of sustainability of fisheries and ecosystems at an acceptable
level of certainty requires a much broader understanding of appropriate
and effective science than has been encompassed by traditional,
single-species fishery management. Ecosystem research and analyses will
increasingly form the basis for new analytical models and assessments of
the factors that influence ecosystem status, and predict environmental
and social impacts of various management approaches. Using these tools,
techniques, and ecosystem indicators, NOAA Fisheries and state and
regional management partners will simultaneously be considering multiple
objectives, identifying risk factors and uncertainty, and forecasting
the cumulative environmental impact of policy choices.

[TREND: In the future, international fisheries management will have a
greater impact on the status of fisheries stocks worldwide.]{.smallcaps}
The U.S. government and the U.S. fishing industry are actively involved
in the operation of most of the international Regional Fishery
Management Organizations (RFMOs). Many of the highly migratory species
(HMS) caught by U.S. fishermen in the U.S. EEZ are also harvested in
significant amounts by foreign fleets on the high seas. The U.S.
government has responsibility to work with other nations to maintain
healthy highly migratory and high seas stocks. Eliminating illegal,
unregulated and unreported fishing practices is a global agenda.
Multilateral policies, standards and guidance on achieving fisheries
sustainability will be increasingly common and depend on consumer and
market choices, and broader trade and economic sanctions in addition to
traditional negotiations to achieve desired fisheries management
outcomes.

[Section 2: MAFAC Findings]{.underline}

Considering the trends discussed above, the following findings and
conclusions were reached:

1.  Seafood demand will continue to exceed supply even if overfishing is
    eliminated, current environmental factors which adversely impact
    stock health and productivity are reversed, and the status of all
    our domestic wild stocks is optimal.

2.  Domestic fisheries alone do not and are unlikely to meet America's
    demand~~s~~ for seafood.

3.  Consumers must have confidence in the safety, quality, and labeling
    of seafood products worldwide.

4.  Limited access privilege programs that protect the fishermen as well
    as the resource must be established where feasible as quickly as
    possible with extensive stakeholder input.

5.  Recreational anglers will continue to increase in numbers and
    impact.

6.  Sustainable, productive fish stocks and rationalized fisheries will
    be prerequisites to decrease allocation disputes between and among
    sectors.

7.  The commercial and recreational fishing sectors will continue to
    play a major role in the economic viability of coastal communities

8.  To meet the increasing demand for seafood products and to reduce our
    current trade deficit, a robust domestic aquaculture industry must
    be part of the future of U.S. marine fisheries.

9.  Ecosystem-based management approaches will be a major part of the
    fishery decision-making process.

10. International fisheries will become more important in the future and
    the United States must continue to be engaged in international
    RFMOs.

Four recurring themes appeared in almost every analysis and discussion
of issues.

1\. [Better data are necessary for management decisions.]{.underline}
Every one of the issue areas examined requires more data, more timely
data, and data of higher quality to achieve the outcomes desired for
fisheries in 2020. In the absence of adequate data, wrong decisions or
overly precautious policies will have profound economic and
environmental consequences. The current investment in data seems
disproportionately low relative to the societal value of the resources
under NOAA's stewardship. Fortunately one of NOAA's strengths is in its
tremendous capacity for conducting scientific research and collecting
data and information. Where this strength turns into value for the
public is when the data and science are applied to management policies
and decision making.

2\. [There are wide-spread opportunities to develop and adopt technology
to assist in achieving the outcomes desired for 2020]{.underline}. Due
to the scale and scope of the issues being addressed in fisheries,
cost-effective solutions for 2020 will likely involve some form of
technology innovation. This will range from: engineering solutions that
refine fishing gear selectivity; to improving the efficiency and success
of aquaculture production; to adopting Number range CHAPTERlow-cost,
modular, self-contained sensor packages that can be deployed in various
environments to greatly increase sampling range and efficiency for
research and monitoring of data required for ecosystem-based
assessments. A focused look at internally and externally developed
technology's potential role from a perspective other than a single
discipline, line office or program point of view could result in
substantial programmatic and cost breakthroughs.

3\. [Achievement of the Nation's ocean policies in 2020 must result from
collaboration and partnerships across levels of government, sectors, and
disciplines to advance the ecological, social, and security interests of
present and future generations.]{.underline} NOAA must identify and
promote opportunities that bring together different interests and
expertise to communicate, coordinate, and collaborate on formulating
sound environmental policies and sustainable ocean management. This will
result in the vigorous exchange of science, engineering, technology and
policy expertise both domestically and internationally.

4\. [To obtain these predicted benefits will require additional
resources.]{.underline} Implementing the recommendations for 2020
described in this report will sustain current resource values and,
through rebuilding and recovery, will significantly increase the value
of our nation's living marine resources. U.S. marine fisheries
(commercial, recreational and aquaculture) are an economic engine for
the nation.[^16] Number range CHAPTERThere is a strong positive
relationship between the public's interest in proper stewardship of our
fisheries and the cost necessary for success. The return on investment
for additional funding is high, readily supporting a business case for
significantly increasing the nation's investment to satisfy the vision
of safe seafood and efficient and sustainable fisheries in 2020.

Number range CHAPTER

[Section 3: Summary Recommendations]{.underline}

MAFAC envisions a future with healthy, sustainable fish populations, a
robust fishing and marine offshore aquaculture industry, ample
recreational fishing opportunities, numerous, vibrant coastal fishing
communities, and a safe and healthy seafood supply for the nation. To
achieve this vision, the following recommendations are proposed. (More
specific details and rationale for each are found in the Appendices of
the report.)

Demand, Supply and Quality of Seafood Products

1.  Public health benefits of seafood should continue to be researched,
    understood and communicated. NOAA should help educate consumers
    domestically and world-wide about the wide array of health benefits
    from aquatic foods. The goal is to empower the public to tailor
    their consumption decisions to individual health needs while
    reflecting accurate and informed conservation concerns.

2.  NOAA should seek both industry and government commitments worldwide
    to strengthen seafood safety programs, including cooperative efforts
    through the United Nations/World Health Organization's Codex
    Alimentarius (food code standards).

3.  NOAA should support the federal government's continuation of free
    trade policies for seafood, and pursue elimination of tariff and
    non-tariff trade barriers through the World Trade Organization,
    bilateral and multilateral agreements.

4.  Seafood safety and associated human health should be enhanced
    through improved NOAA enforcement, research, outreach and education,
    and NOAA should establish itself as an unequivocal source of
    unbiased peer-reviewed scientific information.

Commercial Fisheries

5.  NOAA must achieve and maintain sustainable levels of stocks
    important to commercial fisheries.

6.  NOAA must match fleet capacity with available, sustainable harvest.

7.  Limited access privilege programs should be thoroughly analyzed for
    applicability in all fishery management plans for participants in
    the commercial and recreational sectors, with the goal of
    significantly increasing their use by 2020.

8.  Commercial fishermen, processing businesses, trade associations and
    state and local government representatives working with NOAA
    Fisheries should seek ways to integrate wild stock production with
    aquaculture production to maximize the value of domestic seafood
    production and related industries, including, but not limited to
    efforts to develop "niche" markets for value added products and wild
    products. Integration of wild and farmed production can contribute
    to the development of a stable, year-round processing industry
    ensuring coastal community sustainability.

9.  NOAA must work with states and coastal communities to ensure
    continued infrastructure necessary to support viable seafood
    industry along our coasts.

Recreational Fisheries

10. NOAA must achieve and maintain sustainable levels of stocks
    important to recreational fisheries.

11. Sale of recreationally--caught fish is a form of commerce and should
    be prohibited at state and federal levels. Improved recreational
    harvest data are essential and a recreational registry must be
    implemented and used.

12. Fishery management plans should include analyses of quota transfer
    between recreational and commercial sectors, and should incorporate
    market mechanisms where appropriate.

13. Efforts should be directed to enhance a conservation ethic and pride
    of a national resource amongst all fishery user groups.

Aquaculture

14. The development of a significant domestic, environmentally sound
    aquaculture industry is essential for the production of safe and
    healthy seafood, assisting in the rebuilding of depleted stocks, and
    providing employment opportunities in coastal communities.

15. National offshore aquaculture legislation providing a coordinated,
    cohesive and efficient regulatory process should be passed by
    Congress and implemented immediately.

16. The domestic aquaculture industry should receive financial and
    technical support similar to that available to the American
    agricultural industry.

17. Continuous, comprehensive monitoring of offshore aquaculture sites
    must be included to safeguard wild stocks and assure environmental
    impacts of facilities are insignificant.

Management

18. Coastal and ocean habitat protection must be a primary concern of
    fishery managers as a basic requirement for robust and sustainable
    fish stocks.

19. Ecosystem-based management, including assessments that integrate
    both habitat protection and multi-species interactions, should be
    the norm and not the exception for U.S. fisheries management.

20. Cooperative management efforts among states, regional management
    authorities and federal managers should be maintained and enhanced
    as a basis for sound domestic fisheries management.

21. Stock status and catch data must be accessible to all stakeholders
    and provide the information needed to make informed management
    decisions.

22. Subsistence fishing is recognized as an important source of protein
    for rural and native communities. However it needs to be included in
    the calculation of total catch with an efficient, comprehensive, and
    uniform data collection method.

23. The United States should exert strong leadership in the
    international forums that manage fish stocks beyond countries'
    Exclusive Economic Zones.

24. The U.S. government must exert every influence possible aimed at
    maintaining healthy highly migratory species stocks and barring IUU
    fish from entering the global market place.

Appendices II-VI of this report contain individual papers prepared by
MAFAC members categorized under the following headers: Demand, Supply
and Quality of Seafood Products; Commercial Fishing; Recreational
Fishing; Aquaculture; and Management. These papers provide more details
in support of the conclusions and recommendations noted above. Each
paper was prepared using a standard template and reviewed by a MAFAC
Vision2020 work group, the Committee as a whole, and circulated for
public review.

[APPENDICES]{.underline}

[APPENDIX I. Preparation of Report]{.smallcaps}

In September 2006, the Assistant Administrator of NOAA's National Marine
Fisheries Service (NMFS) asked MAFAC to prepare a report on the desired
future state of U.S. Marine Fisheries. The specific request from the
Assistant Administrator to MAFAC was "to create, in clear, simple,
non-jargon language, a stakeholders' consensus on the desired future
state of domestic and international fisheries."

To meet this request, MAFAC formed a subcommittee composed of MAFAC
members to draft a concept paper of what should be included in such a
report. The concept paper was circulated and input was received from all
MAFAC members regarding a long list of topics to be considered. In
December 2006, a MAFAC writing group met in New York to categorize the
input received. After review and consideration, the committee organized
the input into four subject categories. The committee circulated their
proposal to the full committee and the concept and categories were
unanimously accepted, and a draft report was subsequently prepared.

The draft report was a major agenda item of the June 2007 MAFAC meeting.
By the end of the meeting, MAFAC had reached a consensus on the contents
of the report. In August the draft report was transmitted to NMFS, and
to receive stakeholder input the report was placed by MAFAC on a
dedicated website [Fish2020]{.underline} for review. At the December
2007 MAFAC meeting all MAFAC members reviewed the public input and
collectively revised the report to reflect the accepted comments. This
final report reflects the input of all MAFAC members as well as input
from various stakeholders.

[APPENDIX II - Demand, Supply and Quality of Seafood
Products]{.smallcaps}

***Issue Statement 1*: *Demand for fish and seafood continues to
increase both domestically and worldwide due to population growth,
growth of income and growing recognition of the health benefits of a
seafood rich diet. ***

***Background:*** Given the projected population growth worldwide over
the next two decades, it is estimated that at least an additional 40
million tons of aquatic food will be required by 2030 to maintain the
current per capita consumption[^17] Research is expanding our
understanding of the health benefits of a diet rich in seafood[^18]. If
research continues in the same direction, it will likely raise per
capita consumption around the world creating an even larger demand for
seafood.

***Current Situation:*** Americans consumed a record 16.6 pounds of
seafood per capita in 2004 and health professionals are encouraging a
doubling of the recommended amount to two 6 oz. seafood meals per week.
Globally, consumer demand for fish and shellfish continues to climb,
especially in affluent, developed countries which in 2004 imported 33
million tons of aquatic food worth over \$61 billion.

***Preferred State in 2020:*** Consumers worldwide have adequate
supplies of sustainable seafood to satisfy demand for health and
nutritional benefits, which are economically affordable and meet
personal preferences.

***Proposed Actions to Accomplish Preferred State:*** (a) Educate
consumers domestically and worldwide on the health and nutritional
benefits of seafood;

\(b\) Continue free trade policies and pursue elimination of non-tariff
trade barriers through World Trade Organization, bilateral and
multilateral agreements.

***Proposed Entity(s) to Promote Action:*** (a) Department of Commerce's
NOAA Fisheries Service and Foreign Commercial Service; (b) U.S.
Department of Agriculture's (USDA) Foreign Agriculture Service; (c)
Department of Health and Human Services (HHS), National Institutes of
Health (NIH) and the Food and Drug Administration (FDA); (d) the private
sector; and (e) consumers.

***Issue Statement 2:* *The public is concerned regarding the safety of
aquatic foods due to chemical and biological hazards. The public lacks
the necessary understanding of the relative risks versus health benefits
of a diet rich in seafood****.*

***Background:*** Seafood causes food borne illness worldwide due to
both naturally occurring and handling/processing induced pathogens,
toxins and chemical contamination. Seafood safety programs (both public
and private) may be inadequate in many countries; yet the U.S. imports
over 70 percent of the fish and shellfish consumed domestically.
Research over the past 25 years has identified major health benefits of
seafood consumption causing health officials to encourage greater
consumption (e.g., Americans should double their current seafood
consumption levels). However, increases in demand domestically and/or
worldwide basis, will place additional stress on seafood safety programs
as well as wild capture fisheries.

***Current Situation**:* Seafood safety remains of paramount importance
to consumers and public health officials, yet strong seafood safety
programs in which the consumer has confidence are lacking.

***Preferred State in 2020:*** Consumers are confident in the safety of
both domestic and imported fish and seafood products due to improvements
in public and private standards and inspection infrastructure worldwide.
Furthermore, more consumers are taking advantage of the health benefits
of seafood through increased consumption.

***Proposed Actions to Accomplish Preferred State**:* Effective seafood
safety programs, coupled with great consumer education on the health
benefits of a diet rich in seafood products, would be a beneficial for
health and economic reasons. Both industry and governments worldwide
need to strengthen food safety programs, including cooperative efforts
through the United Nations/World Health Organization's Codex
Alimentarius (food code standard). Consumers are informed about the wide
array of health benefits from aquatic foods and empowered to tailor
their consumption decisions to individual health needs.

***Proposed Entity(s) to Promote Actions:*** Congress would need to
appropriate additional funds at a minimum to strengthen the seafood
safety and inspection program. The Administration entities include: (a)
NOAA Fisheries; (b) HHS's FDA, NIH and Centers for Disease Control; (c)
USDA's Food and Nutrition Service; and (d) the private sector.

[APPENDIX III. Commercial Fishing]{.smallcaps}

The U.S. commercial fishing industry depends upon the long-term
sustainability of fishery resources and their ecosystems. Contributing
over 35 billion dollars to the Gross National Product, the fishing
industry provides an important food source for the nation, creates over
65,000 jobs[^19], and affords a traditional way of life for many coastal
communities. The U.S. is the world's fifth largest fishing nation and
its fleet of approximately 23,000 vessels roams all of the world's
oceans. Commercial fishermen nationwide have seen profound changes over
time in stock abundance, markets, the stakeholder process, and
management of the resource. MAFAC members identified the following four
issues to be considered for the future of the commercial fishing
community.

***Issue Statement 1: Our Nation's fisheries need to be managed to meet
sustainable fishery goals, but even if fully achieved they are unable to
meet domestic demands for many fish products.***

***Background:*** Some marine fisheries continue to be under stress from
overexploitation, habitat degradation, or both. Various factors, both
natural and human-related, affect the status of fish stocks and their
ecosystems. Such factors include: environmental changes, pressure from
commercial fishing effort, and loss of habitat.

The long term potential yield of the fisheries within the U. S. EEZ is
estimated to be 8.1 million tons per year[^20]. However, to reach and
harvest sustainably at this level, current efforts to rebuild stocks
must be extended to all overfished stocks and rebuilding completed.
Efforts to reduce bycatch must be increased. To help meet demand,
by-catch and unaccounted mortality will need to be continually reduced
to help meet conservation goals. Harvest and landings data need to be
improved to account for all mortality. In addition, the current domestic
fishing fleet capacity exceeds what is necessary to obtain the target
catch level for most fisheries. Fisheries must be rationalized to assure
sustainability and protect the fishermen by elimination "the race for
the fish." All these measures will be required to approach the long-term
potential yield by 2020.

***Current Situation:*** Three principal strategies that are available
to or used by fishery managers to manage fishery yields are: regulating
fishing effort, restoring habitats, and increasing recruitment. The
first two methods are the basis for currently managing our fisheries.
Recent landings of U.S. commercial and recreational fisheries are still
only slightly more than 60 percent of the long term potential yield.
Current management measures are designed to maintain sustainable
fisheries stocks, to rebuild depleted stocks to meet the potential long
term yield and consumer's demand for fish products.

***Preferred state in 2020:***

\(a\) Our Nation's fisheries are actively being rebuilt and are at or
approaching sustainable conservation goals.

\(b\) Technological advancements and market demands have resulted in
reductions in undesired bycatch and in increased use of marketable
underutilized species.

\(c\) Our U.S. fisheries are close to achieving long term potential
yield.

\(d\) Coastal commercial infrastructures is maintained or enhanced to
support sustainable fisheries and communities.

***Proposed Actions:***

\(a\) NOAA Fisheries should consider the role of underutilized species
to meet current domestic demand after considering biological,
ecological, socioeconomic and technological implications.

\(b\) Incentives or market development should occur only when research
is completed.

\(c\) Rebuild all depleted stocks by 2020.

\(d\) Data used for managing marine fisheries must be relevant,
reliable, timely, and have stakeholders' confidence.

***Issue Statement 2:*  *Some international Regional Fisheries
Management Organizations (RFMOs) fail to implement necessary
conservation measures to ensure maintenance of healthy stocks, thus
reducing the total amount of seafood available to the nation's
population.***

***Background:*** Many commercial stocks, such as tuna, are highly
migratory species which spend most of their life in the open ocean. They
are harvested by U.S. commercial and recreational fishermen and by
foreign fishing fleets. Although the United States has management
authority for several HMS species, most are managed cooperatively by
Regional Fisheries Management Organizations (RFMOs). 

***Current Situation:*** The performance of RFMOs is uneven, with regard
to effective management of stocks under their jurisdiction.  This
unevenness impacts the U.S. in several ways.  First, because the U.S.
imports a significant amount of seafood, any mismanagement of stocks on
the high seas will ultimately reduce the amount of seafood available for
American consumers.  Second, because consumers often do not distinguish
between poorly managed fisheries overseas and well managed fisheries in
the U.S., domestic fishing companies and fishermen can be unfairly
accused of inadequate commitment to sustainability. Finally, U.S.
fishermen frequently are required to significantly reduce harvests
without similar measures being adhered to by foreign fishing fleets.
Total harvest reductions are necessary to effectively improve the health
of these stocks. The United Nations and the RFMOs themselves are
considering means to make the international management of highly
migratory fish stocks more effective.

***Preferred State in 2020:*** All fisheries, domestic and
international, are effectively managed to sustain long term optimum
yields.

***Proposed Actions:*** The U.S. government provides assistance to RFMOs
to promote sustainable stocks using available political, economic and
other strategic tools to ensure other countries follow the
recommendations of RFMO scientific staff.

***Issue Statement 3:* *Overcapitalization has been and continues to be
a serious concern in a number of U.S. fisheries. Too many fishermen
racing for too few fish has resulted in more restrictive, highly complex
and often ineffective management regimes. The race for fish, coupled
with other factors has increased operating costs. The result has been
lower net economic returns in a number of commercial fisheries.***

***Background:*** U.S. commercial landing were relatively stable at
about 3 million tons per year from 1935 to 1977 when the U.S. extended
its jurisdiction to 200 miles. With the passage of the Fishery
Conservation and Management Act in 1976 and other policies, the federal
government provided incentives to rehabilitate and expand the domestic
fishing fleets. These incentives took two forms: open access management
which allowed unrestricted entry to the fisheries, and a number of
direct and indirect subsidies to the fishing industry. The goal of these
incentives was to ensure full domestic utilization. Since 1977, landings
have more than doubled. However, for many fisheries fishing effort grew
more rapidly than was sustainable, resulting in overcapacity and in some
cases overfishing.

***Current Situation:*** Today, fisheries managers utilize a number of
"command and control" management measures to control fishing effort such
as limits on fishing days, gear restrictions and trip limits. In
addition, most fisheries have some form of limited access. Increasingly
managers and fishermen alike are looking at other ways to more
effectively reduce and manage fishing capacity including buyback
programs, permit stacking programs and limited access privilege programs
with assignable fishing privileges.

***Preferred state in 2020:*** By 2020 we will have reached the goal of
rebuilding sustainable fish populations while maintaining productivity
and biodiversity. This will result in increased biomass, providing
greater harvesting and processing opportunities for domestic fisheries
and increased supply to consumers. Fishing capacity will be at a level
to both efficiently and sustainably harvest domestic fisheries and
provide greater economic returns to participants and fishery-dependent
communities. Limited access privilege programs (LAPPs) will be in place
in most applicable U.S. fisheries, providing market mechanisms to match
capacity with available harvest levels.

***Proposed Actions:***

\(a\) Commercial fishing interests and other stakeholders should work
with regional fishery management councils and NOAA Fisheries to develop
regionally-appropriate plans to: (1) Reduce overcapitalization; and

\(2\) Match fishing capacity to sustainable harvest levels through the
use of LAPPs, industry buyback programs and other appropriate
mechanisms.

\(b\) NOAA should play a leadership role by at least tripling the number
of fisheries under LAPP management by 2020.

***Issue Statement 4:* *Technology offers a myriad of benefits to
fishermen, some of which have significant environmental benefits. In
many cases, technology can complement and enhance federal conservation
and management goals and objectives. ***

***Background:*** Many commercial fishermen utilize increasingly
sophisticated technology during fishing operations. Electronic equipment
common in the wheelhouse today includes state of the art sonar equipment
to locate target species, computer logbooks and electronic net sensors.
Enhanced sonar capability promotes selective fishing and increases
operational efficiencies, including fuel efficiency. Onboard computer
logbooks are an important reference tool providing historical catch
information and can allow for real-time reporting. Electronic net
sensors deployed with the gear can provide important data on proximity
to the ocean floor, net profile and the filling rate of fish in the cod
end. Each of these technological applications can enhance operational
efficiencies and conservation objectives through cleaner fishing and
minimizing fishing gear impacts on the environment.

In addition, in recent years many fishery management plans have mandated
the use of vessel monitoring systems (VMS) as a management tool. VMS, or
onboard satellite tracking systems, provides managers increased
flexibility in developing management measures that can be adequately
monitored and enforced.

***Current Situation:*** In recent years, cooperative research involving
NOAA Fisheries, the fishing industry, universities and the private
sector has produced fishing gear innovations to increase retention of
target species, minimize bycatch of non-target species and reduce impact
of fishing gear on ocean habitat. The projects are numerous and ongoing,
such as: turtle excluder devices (TEDs) in shrimp trawls, chain
modifications to reduce flatfish bycatch in the scallop fishery,
modified footropes to reduce bottom contact, and technologies to deter
seabirds from taking baited fish hooks. Technological innovation is
critical in enabling U.S. fishermen to increase efficiency while
enhancing selective fishing practices which minimize ocean habitat
impacts.

***Preferred state in 2020:*** By 2020 advances in technology will not
only result in more sophisticated products, but also the application of
the technology can be used for scientific purposes as well as commercial
purposes. Advances in gear and monitoring technologies can help obtain
information to improve management, reduce bycatch and minimize habitat
impacts caused by fishing. NOAA Fisheries is able to increase its
efforts to assist in projects that outfit fishing vessels with acoustic
equipment that enhances stock assessment capabilities. Also, programs
that equip fishing vessels with ocean monitoring equipment is greatly
expanded. NOAA's overall science program will be significantly enhanced
by utilizing alternative industry research platforms. NOAA Fisheries
should continue to place a high priority on expanding its cooperative
research program.

***Proposed Actions:*** Actions necessary to achieve the goal of
employing state-of-the-art technology in commercial fishing operations
to enhance efficiency and promote conservation of living marine
resources include: (a) Technology research and development to create
more environmentally friendly fishing gear and practices. These designs
would improve the performance of fishing gear to help reduce bycatch and
minimize habitat impacts, and support additional data collection
programs that enhance management, stock assessments and ocean
monitoring.

\(b\) NOAA Fisheries and the commercial fishing industry should continue
to develop industry partnerships such as its Cooperative Research
Programs and Bycatch Reduction Engineering Programs.

[APPENDIX IV: Recreational Fishing]{.smallcaps}

***Issue Statement 1:* *Growth in populations and coastal tourism are
resulting in increasing numbers of recreational fishermen. Therefore,
the impact these fishermen are having on fish stocks is increasing. As
this demand for recreational fishing continues to increase, recreational
fishermen will request increases in fish allocated to the recreational
sector.***

***Background:*** According to a NOAA report[^21], an estimated 153
million people lived in coastal counties in 2003. This population
represents an increase of 33 million people or 28 percent from 1980. In
addition, a review of NOAA sponsored Marine Recreational Fisheries
Statistical Survey data from the years 1981 to 2005 shows a near
doubling nationally of marine recreational anglers from 6.9 million to
11.2 million or a growth rate of approximately 3 percent per year. The
value of recreational fishing as an economic engine for coastal
communities should be recognized and exploited to a greater degree. The
recreational fishing experience could rival or exceed recreational
fishing catch as a prime motivator for recreational fishing.

***Current Situation:*** The current rate of increase in the angling
population creates new management concerns. If the rate of recreational
fishermen continues to increase at 3 percent per annum, by 2020 the
number of recreational fishermen will increase by 7.3 million to a
projected level of 18.5 million. This change will result in a
significant increase of fishing effort and catch (i.e., mortality), all
else equal. By 2020 continued growth in recreational angling will
require that anglers focus more on the fishing experience and less on
the number of fish landed. However, while post-release mortality in
catch and release fisheries is usually low (often 2-5 percent), as
fishing effort increases, post-release mortality will become an
increasing proportion of total mortality. It is conceivable that the
cumulative total of post-release mortality could increase to levels
equal to the total allowable mortality for a fishery. As the number of
recreational fishermen continues to increase, improved monitoring will
be necessary to assess the fishing effort and catch. A national
saltwater angler's registry under development will be a necessary tool
to collect data.

***Preferred State in 2020:*** Many recreational species have limited
population growth rates and are too valuable to be caught only once. By
2020, catch and release fishing is emphasized and accounted for in
specific species assessments. The proper techniques for release are
refined and disseminated to lower post release mortality. For other
fisheries, minimum size limits and reduced daily bag limits are
sufficient management measures to maintain healthy standing stocks.
Additional seasonal closures are considered to eliminate or redirect
effort. By 2020, angler satisfaction is derived from the recreational
fishing experience rather than the take or "kill" fish. To achieve
optimum yield, adaptive management measures such as a temporary
reallocation of quota is available to managers. For example, if
commercial quota is not harvested, managers are able to temporarily
reassign the under harvested quota to provide additional recreational
opportunity, and vice versa.

***Proposed Actions to Accomplish Preferred State:***

\(a\) Improve collection of recreational catch, release, and harvest
data,

\(b\) Create and use the recreational angler registry.

\(c\) Continue to promote catch and release fisheries,

\(d\) Reduce daily bag limits and implement minimum or maximum size
limits when necessary for those fish stocks where resorting to total
catch and release is not necessary,

\(e\) Promote research to accurately quantify and minimize post release
mortality,

\(f\) Increase the length of seasonal closures when necessary and
encourage the recreational community to maximize the profitability of
open seasons,

\(g\) Amend fishery management plans to allow for timely conversion of
unused commercial allocation to the recreational sector and vice versa;

\(h\) Implement a variety of programs and incentives to enhance the
conservation ethic of recreational anglers.

***Proposed Entity(s) to Promote Actions:***

\(a\) The leadership of the recreational fishing community should
promote the total recreational fishing experience, instill a
conservation ethic, and de-emphasize landings.

\(b\) Industry and NOAA Fisheries should continue to support research
and technology designed to reduce post release mortality.

\(c\) Management (councils, commissions, NOAA Fisheries) should consider
extending closed seasons to reduce mortality.

\(d\) Management, (councils, commissions, NOAA Fisheries), should amend
fishery management plans to allow, when appropriate, the conversion of
commercial quota onto recreational quota and vice versa.

[APPENDIX V. Aquaculture in the United States]{.smallcaps}

In 2004, the U.S. Commission on Ocean Policy[^22] expressed concern
about America's seafood trade deficit and noted the increasing
importance of aquaculture products in seafood trade. It noted also that
new developments in technology made aquaculture possible in the open
waters of much of the U.S. Exclusive Economic Zone (EEZ), where it might
now be done on a large enough scale to make a meaningful impact on the
trade deficit. Accordingly, it directed NOAA to develop a comprehensive,
environmentally sound permitting and regulatory program for marine
aquaculture in the EEZ, to which NOAA responded with a 10-year Marine
Aquaculture Plan[^23] and a proposal for the Nat**ional Offshore
Aquaculture Act of 2007.**

***Issue Statement 1: Growth of American marine and offshore aquaculture
should be supported by government and facilitated by providing a
coordinated and efficient regulatory system and sufficient funds to
achieve this goal.***

***Background:*** Development of marine aquaculture in the U.S. is
hampered by confusing or overlapping laws, regulations and
jurisdictions. Aquaculture operations in offshore waters lack a clear,
timely and efficient regulatory regime, and questions about exclusive
access have created an environment of uncertainty that is detrimental to
investment in this industry[^24].

***Current Situation:*** The U.S. has not yet developed the necessary
policies for locating, (siting), conducting, and monitoring offshore
aquaculture operations. A new governance framework is necessary if
offshore aquaculture is to succeed[^25]

Aquaculture expansion is supported by the U.S. government, but there is
public concern about environmental impacts including possible pollution,
escapes, competition with wild fish, disease transmission and food
safety. This concern has been heightened by misinformation about
aquaculture in the news media[^26].

Global supply of seafood from wild-caught stocks has plateaued, while
demand continues to increase. Aquaculture now provides 43 percent of the
world's seafood. Nutritionists encourage Americans to double their
present consumption of seafood to benefit their health.

***Preferred State in 2020:***

\(a\) A mature statutory framework will exist for the efficient
development of aquaculture in the U.S. EEZ, which protects both the
environment and private aquaculture property rights, and provides
traceability in the market to protect against the substitution of
illegally taken wild stocks.

\(b\) States will have developed comprehensive nearshore aquaculture
plans with technical assistance from NOAA using funds provided by
section 309 of the Coastal Zone Management Act. These state plans will
protect existing nearshore aquaculture from adverse effects of coastal
development and will identify and preserve areas with good potential for
future aquaculture development. They will also provide coordinated and
efficient regulation.

\(c\) Aquaculture will be recognized an instrument of national food
security policy and will be validated by appropriate incentives and a
business climate that encourages good aquaculture practice.

\(d\) Consumers and the public will be accurately informed about
aquaculture and will support sound public policy on its behalf

**Proposed Actions:** Both statutory and regulatory actions are
necessary for a robust domestic marine aquaculture industry by 2020.

[Statutory actions:]{.underline}

\(a\) Develop and codify a statutory framework for marine aquaculture in
the U.S. EEZ. Perfect, as needed, the statutory framework for marine
offshore aquaculture.

\(b\) Identify NOAA as the lead federal agency for all offshore marine
aquaculture.

\(c\) Develop economic policies that encourage environmentally sound and
economically viable marine aquaculture, include exploring options to
promote community and fisherman entry into aquaculture through the use
of specific access privileges, cooperatives, and other statutory or
regulatory changes

\(d\) In addition, modify current financial assistance and development
programs at the state and federal level to facilitate creation of
aquaculture operations similar to the support received by the
agriculture industries.

\(e\) Authorize regional pilot projects involving commercial fishing
families to provide a mechanism for fishermen's involvement as well as
an educational and outreach tool.

[Regulatory actions:]{.underline}

\(a\) Encourage states to utilize CZMA section 309 funds to accomplish
comprehensive planning for aquaculture development in the territorial
sea.

\(b\) Provide sufficient financial support for research and development
on all aspects of marine aquaculture including evaluation of best
management practices to minimize ecosystem impacts.

\(c\) Consider establishment of aquaculture zones within the EEZ which
would reduce the burden on applicants to submit *new* applications for
every proposed project.

\(d\) Promote outreach and education to enhance public understanding of
marine aquaculture.

\(e\) A Programmatic Environmental Impact Statement (PEIS) for
aquaculture projects should consider cataloguing local species and
habitat; identifying potential risks to sensitive habitats, fish and
wildlife; review of potential wastes, chemicals, and biological
pollutants and the anticipated ramifications for local fish and wildlife
populations; relevant information on marine ecosystems from the use of
feeds; design and placement of aquaculture facilities and expected
impact; and expected effect on the human environment including impacts
on small businesses and coastal communities.

***Proposed Entity(s) to Promote Actions:***

\(a\) Congress for statutory actions with input from the Executive
Branch and the public (including industry interests).

\(b\) State authorities responsible for implementing the Coastal Zone
Management Act for coordinating the development of comprehensive
aquaculture plans with CZMA 309 funding.

\(c\) Executive Branch, primarily through NOAA and the Joint
Subcommittee on Aquaculture, for regulatory actions with input from the
industry, the public, the regional fishery councils, fisheries
commissions, and the coastal states.

[APPENDIX VI: Management]{.smallcaps}

Based on the current trend, ecosystem-based approaches to management
will be the norm and not the exception by 2020. The ecosystem-based
management approach is defined as management that is adaptive,
geographically specified, takes account of ecosystem knowledge and
uncertainties, considers multiple external influences, and strives to
balance diverse societal objectives. An ecosystem-based approach to
management is incremental and collaborative since the authorities for
ecosystem management are distributed across many levels of government,
and management requires participation of many different stakeholder
groups in public and private sectors.

Ecosystem-based management approaches must be based on high quality,
reliable scientific data. For ecosystem-based management to succeed, a
significant expansion in the type and quantity of data collected and
analyzed must occur. Furthermore, timely accessibility by managers to
these new and different kinds of high quality data is critical to
success. It is essential to initiate new data collection programs,
particularly those utilizing advanced technology, and to expand and
improve existing data collection and delivery programs. MAFAC members
identified the following issues to be considered when discussing
management tools for the future.

***Issue Statement 1:*** ***Place-based management approaches are
gaining acceptance in dealing with a variety of ocean use issues,
including protection of unique habitat, location of industrial and
scientific research facilities, and conservation and management of
living marine resources.***

Various state and federal regulatory agencies and private sector
interests will become more involved. Traditional fisheries management
entities need to recognize the addition of these new and in some cases
influential broad based stakeholders.

***Background:*** Marine Managed Areas (MMAs), an example of place-based
marine resource management, have been proven an effective tool to
supplement traditional management techniques. Examples include seasonal
fisheries closures, Marine Protected Areas (MPA's), and No-Transit
Zones.

***Current Situation:*** In progress: Number of MPA's and results.
Allocations and mitigations/conflicts expected.

***Preferred State in 2020:*** Unique habitats, essential fish or marine
mammal critical habitats, and rare marine ecosystems are protected with
MMA's developed with stakeholder advice and support.

***Proposed Actions:*** (a) Place-based management must be better
coordinated within NOAA.

\(b\) If Marine Managed Areas involving living marine resources are
designated, they should be based on the best scientific information
available.

\(c\) Criteria for assessing the costs and benefits of closing an area
must be identified, assessed and considered before a decision is made.

\(d\) The area should be monitored. A timetable should be established
for review of the closed area's performance that is consistent with the
purposes of the closed area.

***Proposed Entity(s) to Promote Actions:*** (a) NOAA Fisheries should
champion place-based management in partnership with NGOs, fishermen and
other marine resource stakeholders.

***Issue Statement 2:* *Technology plays a vital role in ecosystem-based
marine resource conservation and management and in the development of
responsible aquaculture practices. Continued improvements in technology
will further enhance sustainable marine resource management efforts. ***

***Background and Current Situation:***

Technology is integral to NOAA Fisheries' science program, and it plays
a significant role in the agency's enforcement and monitoring efforts.
Here are some examples of how technology is currently being utilized.

-   Satellite imaging assists ocean observation and is an increasingly
    important tool for assessing fish and marine mammal stocks,
    identifying "bycatch hotspots," and mapping sensitive habitat.

-   In the Alaska region, scientists attach satellite transmitters to
    marine mammals to collect information on diving patterns. This data
    is then used to determine the animals' foraging and migratory
    characteristics, and it assists managers in developing conservation
    and management measures designed to minimize competition for prey
    between marine mammals and fishing activities.

-   Vessel Monitoring Systems (VMS) employ electronic transmitters on
    fishing vessels. These transmitters relay information about a
    vessel's location via satellite. VMS is used not only to enforce
    management area closures, but is utilized on the west coast for
    depth-based management for commercial and recreational groundfish
    fishing.

-   Satellite communications assist in fisheries monitoring and
    enforcement. Federal fishery observers communicate vessel catch data
    to a central data base on a daily or weekly basis, and this catch
    accounting is essential to ensure that total allowable catch levels
    are not exceeded. Also, video monitoring through mounted on-deck
    cameras is being studied as an alternative to placing observers
    onboard vessels.

-   Work is continuing on state-of-the-art acoustic technology to
    improve fishery survey work, which is a key component of stock
    assessment. In fact, NOAA has launched two new research vessels that
    are among the most technologically advanced research vessels in the
    world to replace the aging vessels in its fleet, and two more
    research vessels are under construction.

***Preferred State in 2020:*** NOAA will be utilizing technology to
increase dramatically our understanding of the ocean environment,
protect and conserve marine resources and provide direct and measurable
benefits for the fishing community.

\(a\) In conjunction with other federal agencies and non-federal
partners, NOAA will have implemented an integrated ocean observing
system (IOOS), including the placement of biophysical moorings that
perform myriad tasks. IOOS systems provide continuous, real-time
observations that include acoustic readings that help determine fish and
marine mammal migrations and optical technologies that help monitor
ecosystem health.

\(b\) Research in life history, stock structure, brood-stock
considerations, spawning, rearing and release of juveniles and
ecological concerns will have advanced such that stock enhancement,
using hatchery reared juveniles to supplement wild production, is a
widespread viable management tool to be considered for rebuilding
depleted marine stocks. Research and development of stock enhancement
should have expanded such that by 2020 the U.S. can take a role in
developing international guidelines and standards. U.S. efforts should
have proceeded on a regional basis with a focus on stocks that most
greatly impact current and future fisheries management and harvest.

\(c\) NOAA will be employing Geographic Information System (GIS) tools
throughout the country for further improving ecosystem-based management.
GIS software allows for visual representation of important ecosystem
attributes in map form. Mapping has a number of effective applications
for marine resource management, including identifying bycatch hotspots.

\(d\) NOAA scientists will be routinely utilizing acoustic technology to
characterize the seabed. Historically, the process for learning more
about seabed composition (a critical aspect of the marine habitat)
required removal of core samples. This work technology will also be in
place serving NOAA's hydrographic survey mission, working across
scientific disciplines to use acoustic technology to perform both
habitat research and navigational chart updates.

\(e\) NOAA Fisheries will be widely employing autonomous underwater
vehicles (AUVs), or Seagliders, to enhance its science program.
Seagliders are small, free-swimming vehicles that are extremely energy
efficient and can be deployed for months at a time. Working jointly with
university scientists, NOAA will routinely employ Seagliders to record
oceanographic measurements traditionally collected by research vessels,
but at much less expense.

***Proposed Actions:*** (a) Both Congress and NOAA Fisheries should
place a priority on applying technological innovations to strengthen
science and management programs within the agency.

\(b\) Future administrations of NOAA should continue the emphasis placed
by the current administration on intra-agency and inter-agency
coordination of science and technology programs. NOAA's future
leadership should also continue to seek partnerships with universities
as well as other entities engaged in marine research.

\(c\) Congress must adequately fund NOAA Fisheries' science and
technology programs, recognizing that ecosystem-based management
objectives, including an enhanced understanding of the ocean
environment, cannot be achieved without investments in technological
innovations.

***Proposed Entity(s) to Promote Actions:*** Congress, NOAA leadership,
academia.

***Issue Statement 3:*** ***Allocation disputes currently confound the
management of many fisheries. Councils often are faced with making
difficult allocation decisions with little scientific information to
guide these decisions. Councils should have the option to use assignable
fishing rights to resolve allocation issues between commercial and
recreational sectors, and within sectors.***

***Background:*** Allocation of fisheries between and among sectors has
historically been done through political forces exerted on councils or
Congress; this has often been a difficult and contentious process. Where
assignable fishing rights have been created, market forces rather than
regulations have determined fishery entry and exit decisions. Some
allocation issues, including those between commercial and recreational
fishermen, could be better resolved through limited access privilege
programs (LAPs) and all councils should evaluate these mechanisms
available to them.

***Current State:*** Individual Transferable Quotas (ITQs) and
harvesting cooperatives have enabled industry to consolidate, and
provided a mechanism to allocate fisheries to those placing the highest
values on the fishery (willing to pay the most). To date these tools
have only been deployed in commercial sectors. Acceptance of rights
based approaches varies among regions, with strong positions held on
both sides.

ITQs are successfully in place on all three coasts of the U.S. Although
the North Pacific Fisheries Management Council has successfully
implemented ITQs programs for several of its commercial fisheries, the
first attempt to implement ITQs for the for-hire halibut sector failed
after more than six years of work, due to resistance from the
recreational community. Concerns include ability to outbid the
commercial sector, ability to pay off their shares, and the potential
for migration of recreational shares into the commercial sector. The
lack of accurate catch histories complicates initial allocation. Given
the proven political clout of the recreational sector, many see it
easier and cheaper to compete for allocation through the political
process of the councils and Congress, rather than risk allowing market
forces to play out.

***Preferred State in 2020:***

\(a\) LAPs are widely used in both commercial and recreational sectors
to provide the right incentives, address overcapacity and address
allocation issues within the sectors and across the sectors.

\(b\) Reliable catch reporting systems are in place to support stock
assessments, fisheries management, and allocation decisions.

***Proposed Action:***

\(a\) NMFS needs to work with councils to deploy the new assignable
rights authority contained in the MSRA.

\(b\) Proactive involvement by NMFS with councils during the development
stage will help ensure adherence to required processes and standards,
resulting in approvable plans.

\(c\) Continue efforts to promote the value of assignable rights based
approaches and publicize success stories in cooperation with the
councils.

***Proposed Entity(s) to Promote Actions:*** NMFS, councils, commercial
and recreational organizations and other interested stakeholders.

[^1]: The FCMA also created the eight regional fishery management
    councils.

[^2]: "Toward Rebuilding America's Marine Fisheries, Annual Report to
    Congress on the Status of U.S. Marine Fisheries 2006":
    <http://www.nmfs.noaa.gov/sfa/statusoffisheries/SOSmain.htm>

[^3]: "An Ocean Blueprint for the 21st Century", U.S. Commission on
    Ocean Policy:
    <http://www.oceancommission.gov/documents/full_color_rpt/welcome.html>

[^4]: "Review of the state of world marine fishery resources", FAO
    report, 2005. <ftp://ftp.fao.org/docrep/fao/007/y5852e/y5852e00.pdf>

[^5]: *Ibid.*

[^6]: "Fish to 2020: Supply and Demand in Changing Global Markets",
    International Food Policy Research Institute Report, 2003.
    <http://www.ifpri.org/pubs/books/fish2020/oc44front.pdf>

[^7]: "Fisheries of the U.S., 2006", NMFS Report, 2007. NMFS Current
    Fisheries Statistics No. 2006

[^8]: 2006 Seafood and Health Conference "Seafood is a low-fat source of
    high quality protein and the health benefits of eating seafood make
    it one best choices for growing children, active adults and the
    elderly."

[^9]: Seafood inspection and assurance of a safe product is becoming a
    more frequent domestic consumer concern. Congressional hearings and
    introduction of legislation reflect this growing interest.

[^10]: "Fisheries of the U.S.,2006". *op. cit.*

[^11]: "Report on the Status of the U.S. Fisheries for 2006", NMFS
    annual Report to Congress,
    <http://www.nmfs.noaa.gov/sfa/statusoffisheries/SOSmain.htm#07>

[^12]: "State of world aquaculture, 2006", FAO Report,
    <http://www.fao.org/docrep/009/a0874e/a0874e00.htm>

[^13]: Presentation by NOAA's Dr. Michael Rubino at February 2006
    Aquaculture America Meeting: "Offshore Marine Aquaculture: Building
    on Policy, Technology and Research"
    <http://www.lib.noaa.gov/docaqua/presentations/aa_offshorepanel_files/rubino_aa_06.pdf>

[^14]: "NOAA Ten Year Plan for Marine Aquaculture", NOAA Aquaculture
    Plan: U.S. Department of Commerce, National Oceanic and Atmospheric
    Administration, October 2007.
    <http://aquaculture.noaa.gov/pdf/finalnoaa10yr_rweb.pdf>

[^15]: "State of world aquaculture, 2006", FAO Report *op. cit*.

[^16]: With every one pound increase in U.S. fish and shellfish supply,
    \$2.41 in value is added to the U.S. Gross National Product.
    Non-consumptive and recreational uses contribute billions of dollars
    to the economy as well.

[^17]: "State of world aquaculture, 2006", FAO Report: *op. cit*.

[^18]: See for example web sites of Seafood and Health Alliance
    <http://www.seafoodandhealth.org/> and National Seafood Educators
    <http://www.seafoodeducators.com/home.html>

[^19]: "Fisheries of the U.S.,2006". *op. cit.*

[^20]: "Our Living Oceans: Report on the Status of U.S. Living Marine
    Resources, 1999", NOAA Report, <http://spo.nwr.noaa.gov/olo99.htm>

[^21]: "Population Trends along the Coastal United States: 1980-2008",
    2005 NOAA report,
    <http://marineeconomics.noaa.gov/socioeconomics/assessment/population.html#Download>

[^22]: "An Ocean Blueprint for the 21^st^ Century", *op. cit.*

[^23]: NOAA Aquaculture Plan *op. cit.*

[^24]: "An Ocean Blueprint for the 21^st^ Century" *Ibid.*

[^25]: "Recommendations for an Operational Framework for Offshore
    Aquaculture in U.S. Federal Waters." Cicin-Sain, B. et al., 2005

[^26]: "State of world aquaculture, 2006", FAO Report, *op. cit*.