MARINEAQUACULTURE

N OA A 1 0 - Y e a r P l a n f or

O C T O B E R 2 0 0 7

U.S. Department of Commerce National Oceanic and

Atmospheric Administration
MARINEAQUACULTURE

N OA A 1 0 - Y e a r P l a n f o r

O C T O B E R 2 0 0 7

U.S. Department of Commerce National Oceanic and

Atmospheric Administration

U.S. Department of Commerce

Carlos M. Gutierrez, Secretary

National Oceanic and Atmospheric Administration

Conrad C. Lautenbacher, Jr., Vice Admiral, U.S. Navy (Ret.), Under Secretary

National Marine Fisheries Service

William T. Hogarth, Ph.D., Assistant Administrator for Fisheries


NOAA 10-YEAR PLAN for MARINE AQUACULTURE | 5 | OCTOBER 2007

Contents

Introduction ....................................................................................... 6

Background ........................................................................................ 7

Setting the Stage for Marine Aquaculture Development ................ 11

Program Goals and Strategies ........................................................ 15

Outcomes ......................................................................................... 19

Benefits ........................................................................................... 20

Budget and Staffing Requirements ................................................. 21

Challenges ....................................................................................... 22

Appendix 1: Legislative and Policy Drivers ..................................... 23

You may download an electronic version of this report from:

http://www.aquaculture.noaa.gov

This document should be cited as follows:

NOAA 10-Year Plan for Marine Aquaculture, October 2007

For more information:

NOAA Aquaculture Program Office

1315 East-West Hwy.

SSMC-3 - Route: F/AQ

Silver Spring MD 20910

Phone: (301) 713-9079

Website: www.aquaculture.noaa.gov

http://www.aquaculture.noaa.gov

Cover: Bill Dewey of Taylor Shellfish Farms, left, shows an oyster to a visitor

at the company’s Samish farm in Skagit County,Washington.Also pictured, in

back, are Bill Taylor and his father, Justin Taylor. Photo: © Argus Newspaper

Small images L to R:

• The Aquapod, seen here on the surface, is one type of submersible pen

used for open ocean fish farming in the U.S. Photo: © Snapperfarm, Inc.

• The marine finfish Seriola rivoliana, also known as Hawaiian yellowtail, is

being farmed commercially in Hawaii. Photo: Sea Grant Aquaculture Program

• Farmed in the U.S. and elsewhere, manila clams are among the most popular

species of cultured shellfish in the world. Photo: NOAA Aquaculture Program

• Aquaculture facilities use a variety of grow-out systems to accommodate

finfish as they grow, including tanks and raceways.

Photo: © Hubbs-SeaWorld Research Institute

NOAA AQUACULTURE PROGRAM © NANGERONI DESIGNS NOAA AQUACULTURE PROGRAM Harvesting oysters from an oyster float in

the Pacific Northwest requires a hands-on

approach.

The integration of aquaculture and

commercial fishing is beginning to take

place in some parts of the U.S.

The U.S. has been a global leader in aquaculture research and development for

over 30 years.
NOAA 10-YEAR PLAN for MARINE AQUACULTURE | 6 | OCTOBER 2007

I

n response to a request from

the Marine Fisheries Advisory

Committee (MAFAC), the

National Oceanic and Atmospheric

Administration’s (NOAA) Aquaculture Program first drafted this

10-Year Plan, to frame the agency’s

vision and plans for development

of marine aquaculture in the United

States. This document was not

mandated or intended to fill any

legal requirement. It was drafted in

response to a request from MAFAC

to provide the agency with a broad

framework for marine aquaculture*

and goals for the program.

In July 2006, the initial draft of

the plan was reviewed and endorsed

by MAFAC. Based on MAFAC’s

comments, the plan was revised

by NOAA and made available

for further public comment in

November 2006. In October 2007,

the plan was adopted by NOAA as an agency-wide policy document

intended to guide a broad, national initiative for marine aquaculture

based on four distinct goals:

1] A comprehensive regulatory program for marine aquaculture.

2] Development of commercial marine aquaculture and

replenishment of wild stocks

3] Public understanding of marine aquaculture.

4] Increased collaboration and cooperation with international partners.

The plan also provides an assessment of the challenges NOAA will face

in its effort to reach these goals, such as the need for congressional and

Executive Branch actions to provide additional legislative and budget support.

As noted by Dr. William Hogarth, NOAA’s Assistant Administrator for

Fisheries, the plan will continue to be a work in progress as the agency

moves forward with a strong focus on enabling marine aquaculture to grow

as a complement to fishing to increase domestic seafood production. At the

same time, NOAA and the related federal agencies will continue to pursue

research to better understand the environmental, social, and economic

implications of aquaculture and to guide agency decisions.

Introduction

* For purposes of this plan, aquaculture is defined as the propogation and rearing

of aquatic organisms in controlled or selected environments for any commercial,

recreational, scientific, or public purpose.

In the Chesapeake Bay region, new approaches

to oyster culture are being tested, such as this

rack-and-bag system.

NOAA AQUACULTURE PROGRAM

Commercial aquaculture operations use paddlewheel technology in land-based systems to

farm microalgae.

NOAA AQUACULTURE PROGRAM
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Momentum is building for the United States to use aquaculture

to become more self-sufficient in the production of seafood

and the replenishment of wild stocks. Recognizing this, in

June 2005 the Marine Fisheries Advisory Committee (MAFAC) requested

that the National Oceanic and Atmospheric Administration (NOAA)

prepare a plan to support the future development of marine aquaculture

in the United States.

Based on its initial discussion of an “Aquaculture Development Initiative”

in June 2005, MAFAC viewed a strong, forward-looking plan from NOAA

as the basis for a broad national marine aquaculture program. To provide

specific recommendations to the agency regarding the development of

marine aquaculture, MAFAC asked NOAA to detail the approach it would

take over the next decade to fully support the development of marine

aquaculture in the United States.

MAFAC’s request for this plan was timely. The national profile of

aquaculture was raised significantly by recent events highlighting the need

for greater attention to the development of marine aquaculture in the United

States. These events include the delivery of the U.S. Commission on Ocean

Policy’s final report and recommendations to Congress in September 2004,

the release of the President’s U.S. Ocean Action Plan in December 2004, and

the submission of the Administration’s National Offshore Aquaculture Act of

2005 (S. 1195) in June 2005 to establish a coordinated regulatory regime for

aquaculture in federal waters.

In its 2006 report, “State of World Aquaculture”, the U.N. Food and Agriculture Organization (FAO) reported that nearly half of the fish consumed

as food worldwide are raised on fish farms (compared to 9 percent in 1980)

and estimated that world wide aquaculture production would have to

increase from 45.5 million mt in 2004 to 80 million mt in 2050 to just

maintain current per capita consumption levels. The FAO highlighted the

growing consumer demand for

seafood as one of the most important

driving forces behind the surge in

production. Media coverage of the

FAO report along with more recent

concern over the safety of seafood

imports has added context and

urgency to the U.S. effort to spark

more domestic seafood production

through aquaculture to meet the

growing demand. Also in 2006,

NOAA hosted the international

scientific research community in

Seattle, Washington, to showcase

the latest advances in aquaculturebased rebuilding of wild stocks that

support commercial and recreational

fisheries worldwide. This pivotal

event provided an opportunity for

the world’s leading researchers and

practitioners in this field to refine

the technologies and identify how

aquaculture can contribute to a better understanding of the biological

processes within fisheries.

In December 2006, an ad-hoc

committee of the American Fisheries

Society formed by the president of

AFS published its recommendations

on open ocean aquaculture in the

journal Fisheries. Also in early

Background

NOAA AQUACULTURE PROGRAM

NOAA AQUACULTURE PROGRAM

Net pens are typical of the equipment used to culture marine finfish in many parts of the world.

The SeaStation, seen here on the surface, is

one type of submersible pen used for open

ocean fish farming in the U.S.
NOAA 10-YEAR PLAN for MARINE AQUACULTURE | 8 | OCTOBER 2007

2007, a task force of experts, policymakers, and practitioners —convened through the Woods Hole Oceanographic

Institute — published its recommendations on marine aquaculture in the United States. Those recommendations

highlighted the ongoing federal effort to support sustainable approaches to increased seafood production and wild

stock rebuilding through aquaculture.

One of NOAA’s greatest current challenges, in terms of improving public understanding of its overall goals for

aquaculture, is to provide context for offshore aquaculture in the United States. NOAA’s aquaculture responsibilities

are much broader than offshore regulation which has received extensive public attention. NOAA reviews permits

for coastal aquaculture and engages in research and development for all forms of marine aquaculture (e.g., shellfish

farming, algae culture, feeds, hatchery techniques, closed recirculating systems, and biomedical products), and

aquaculture-based rebuilding of species important to commercial and recreational fisheries. Under NOAA, the

National Sea Grant Program is the lead for outreach and extension to producers and the public. NOAA’s National

Sea Grant Program Office also administers the research funding for the National Marine Aquaculture Initiative.

In light of the renewed national debate on the future of marine aquaculture, it is important to note that aquaculture

— now a $1 billion industry (farm gate sales) in the United States — is not new. NOAA and its predecessor

agencies have been involved with commercial marine aquaculture and enhancement of wild finfish and shellfish

stocks since the late 1800s.

For decades, NOAA-led research

(e.g., on finfish and shellfish biology

and reproduction, habitat use and

restoration, environmental impact

assessment, and fish pathology) has

supported all facets of private and

government aquaculture, including

aquaculture-based rebuilding activities for wild finfish and shellfish. For

more than 40 years, NOAA has also

been a leader in international scientific research and collaboration, organizing and participating in various formal

and informal international workshops and exchanges through the FAO and with international counterparts in

Canada, Chile, China, the Faroe Islands, France, Iceland, Ireland, Japan, Korea, Norway, Scotland, and Taiwan.

To date, much of the scientific information and technology developed by NOAA has been used in the commercial

aquaculture, commercial fishing, and recreational fishing sectors, where it has been instrumental in the development

of finfish and shellfish hatcheries and culture operations. Recent examples include NOAA research and development

support for commercial shellfish and salmon replenishment, and open ocean culture technology in Hawaii for moi

and amberjack, in Puerto Rico for cobia, and in New Hampshire for mussels and cod.

NOAA’s involvement in marine aquaculture has taken place under a number of legislative and policy drivers.

Beginning in the 1970s, several laws were enacted that gave NOAA comprehensive environmental stewardship

responsibilities for marine resources, including the Magnuson-Stevens Fishery Conservation and Management Act,

Marine Mammal Protection Act, Endangered Species Act, Coastal Zone Management Act, and National Environmental Policy Act. Under these laws, NOAA is responsible for considering the potential environmental impacts of

planned marine aquaculture facilities on its trust resources through formal permit reviews and consultations.

BACKGROUND, CONTINUED

NOAA AQUACULTURE PROGRAM

The U.S. is one of the world’s leading producers of broodstock for the Pacific white shrimp.
In addition the National Aquaculture Act of 1980, National Sea Grant College Program Act, the Saltonstall-Kennedy

Act (as amended), and the Merchant Marine Act gave NOAA authority to develop and provide assistance for both

public- and private-sector aquaculture.

In the 1990s, rising demand for seafood, declining market share of domestically wild-caught fish, and increasing

imports led to renewed interest in the potential of marine and freshwater aquaculture. In response to increased

demand for and a growing trade deficit in seafood, NOAA and the Department of Commerce (DOC) developed

aquaculture policies, which were adopted in 1998 and 1999, respectively. In 2003, as part of its commitment to

implement the FAO Code for Responsible Fishing, NOAA’s National Marine Fisheries Service (NMFS) prepared a draft voluntary Code of Conduct for Responsible Aquaculture Development

in the United States Exclusive Economic Zone, which called for a

precautionary approach—combined with adaptive management

— as a guiding principle. Descriptions of these authorities and

policies are provided in Appendix 1.

More recently, several high-profile internal and external

events, initiatives, and accomplishments have helped shape

NOAA’s expanding role in aquaculture:

■ NOAA designated aquaculture as a cross-agency

matrix program under the agency’s Planning,

Programming, Budgeting, and Execution System (PPBES)

in 2003. In 2004, a permanent, full-time NOAA Aquaculture Program Manager was hired.

■ In September 2004, the U.S. Commission on Ocean Policy submitted to Congress a final report and

recommendations, including several on aquaculture. In response, the Administration prepared its 2004

U.S. Ocean Action Plan, which highlighted national priorities based on the Commission’s recommendations.

Both documents called for new authority for the Secretary of Commerce to develop the regulatory

framework for aquaculture in federal waters.

■ In June 2005, the Administration transmitted to Congress the National Offshore Aquaculture Act. The purpose of the act was to establish a regulatory framework for aquaculture in federal waters, as outlined in the

U.S. Ocean Action Plan and to support research and development of marine aquaculture. The act, which was

subsequently introduced as S. 1195, was the focus of two Senate hearings in 2006. However, the 109th Congress ended without taking action on the bill. In March 2007, the Administration transmitted to the 110th

Congress a revised National Offshore Aquaculture Act based in response to stakeholder feedback which focused

on strengthening the environmental safeguards in the June 2005 proposal. It was introduced in the Senate as

S. 1609 and in the House of Representatives as H.R. 2010 which held a hearing in July 2007.

■ A $3 million increase was included in the President’s FY 2008 Budget for NOAA to establish the

regulatory framework for environmentally sustainable commercial aquaculture opportunities.

NOAA AQUACULTURE PROGRAM

NOAA 10-YEAR PLAN for MARINE AQUACULTURE | 9 | OCTOBER 2007

BACKGROUND, CONTINUED

Development of new aquaculture technologies could

provide new opportunities for fisheries-dependent

coastal communities in the U.S.
NOAA AQUACULTURE PROGRAM

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Other recent program milestones include:

■ Since 2003, a federal interagency team commissioned under the auspices of the Joint Subcommittee on

Aquaculture has led an ongoing effort to develop and implement an aquatic animal health management

program for the United States.

■ In 2005, NOAA co-sponsored the first international meeting focused on the role of aquaculture in

ecosystem-based management. The meeting resulted in specific scenarios for managing coastal resources,

which include aquaculture, fisheries, and coastal communities. The results of the meeting will be published

in 2007.

■ In 2006, NOAA awarded $3.6 million in competitive grants to 11 marine aquaculture demonstration and

research projects under the National Marine Aquaculture Initiative (NMAI). This funding supported projects

to assess the commercial potential of marine aquaculture, feasibility of aquaculture-based rebuilding,

environmental impacts of aquaculture in various environments, and research on key aquatic animal nutrition

and health issues. Since 1998, NOAA has funded $15 million through the initiative to support research to

boost the production of commercially and recreationally valuable marine shellfish and finfish species in the

United States.

■ Also in 2006, several key research documents, authored by agency technical experts, were published,

including Guidelines for Ecological Risk Assessment of Marine Fish Aquaculture, and papers on shellfish

immunology, probiotic bacteria for shellfish hatcheries, and harmful algal interactions with mollusks.

■ NMFS funded and participated in regional aquaculture initiatives in 2006, including the initial

development of the Chesapeake Shellfish Aquaculture Plan.

■ NOAA has administered $15 to $20 million annually for research

and development projects directed

by Congress to nonprofit institutes and universities for commercial

aquaculture and aquaculture-based rebuilding of wild stocks

(excluding salmon).

■ NMFS and NOAA’s National Ocean Service (NOS) science centers

continued pioneering research in the area of aquaculture-based

rebuilding for wild stocks such as West Coast rockfish, king crab,

Pacific cod, summer flounder, and salmon, including reform of

hatchery practices for Columbia River and Puget Sound salmon species.

■ U.S. Secretary of Commerce Carlos M. Gutierrez hosted a National Marine Aquaculture Summit in July,

2007. At the Summit, national business leaders, policy experts, government officials, and researchers

discussed the opportunities and challenges for marine aquaculture in the United States. Summit participants

also made recommendations on how the United States can join the global aquaculture community and

accelerate the integration of domestic aquaculture into domestic seafood production in an environmentally,

economically, and socially responsible manner. Summit participants agreed on the need for national offshore

legislation to provide regulatory certainty for those considering investing in federal waters.

BACKGROUND, CONTINUED

The commercial production and replenishment

of oysters are the focus of research initiatives

across the U.S.
NOAA 10-YEAR PLAN for MARINE AQUACULTURE | 11 | OCTOBER 2007

Acompelling case can be made for developing additional domestic

marine aquaculture capacity. Aquaculture can help meet the

growing demand for seafood and help rebuild our wild fish stocks,

while maintaining an infrastructure in coastal communities to support both

wild stock fisheries and commercial aquaculture. The potential synergies —

rather than competition—among those engaged in commercial and recreational fisheries, marine aquaculture, seafood processing, and marketing are

the keys to maintaining resource-dependent coastal communities and to

ensuring a lead role for the United States in the global seafood market.

The following facts are integral to any discussion on the potential of

marine aquaculture in the United States:

■ The U.S. aquaculture industry (marine and freshwater) currently

has an approximate farm-gate value of $1 billion.**

■ Americans consumed 16.5 pounds (7.5 kg) of seafood per person

in 2005, up from 12.5 pounds (5.7 kg) in 1980, while the United

States population increased from 225.6 million to 298.2million

between 1980 and 2006.***

■ Nutritionists are encouraging Americans to double our consumption of seafood, from one seafood meal per week to two. According

to a recent study, eating more seafood has the potential to reduce

heart attack deaths in the United States by as much as 34 percent.

■ Imports comprised over 80 percent of the U.S. edible seafood

supply in 2006 (round weight).***

■ The U.S. seafood trade deficit for edible products was

$9.1 billion in 2006.***

■ Many important commercial

and recreational species are

overfished and need to be

rebuilt. Aquaculture could play

a role in providing recruits and

information to improve traditional fisheries management.

■ U.S. firms currently supply

aquaculture technology,

services, investment capital,

brood stock, and feedstuffs to

a global aquaculture industry.

Setting the Stage for Marine Aquaculture Development

** Source: U.S. Department of Agriculture

National Agricultural Statistics Service,

Census of Aquaculture 2005

*** Source: U.S Department of Commerce,

Fisheries of the United States 2006

In Hawaii, producers use the power of the sun to grow algae which is fed to cultured finfish during early life stages.

NOAA AQUACULTURE PROGRAM NOAA AQUACULTURE PROGRAM

About 20% of all U.S. aquaculture products

are marine species such as oysters and clams.
NOAA 10-YEAR PLAN for MARINE AQUACULTURE | 12 | OCTOBER 2007

NOAA is weighing the best

prospects for increasing

future commercial

seafood production through marine

aquaculture, while also recognizing

other potential non-food uses for

marine aquaculture products. For

example, a preliminary analysis by

NOAA shows that annual domestic

commercial aquaculture production

(freshwater and marine) could be

increased by 1 million mt by 2025

(Table 1). The additional production could include 760,000 mt from

finfish aquaculture 47,000 mt from

crustacean production (crayfish and

shrimp), and 245,000 mt from mollusk production (oysters, mussels,

clams, scallops, and abalone) Of the

760,000 mt of finfish aquaculture,

590,000 mt could come from new

production of marine finfish species,

while increasing production of freshwater species such as catfish, striped

bass and tilapia by 70,000 mt and

anadromous species such as salmon

and rainbow trout by 100,000 mt.

The figures used in this analysis reflect projections based on best available

data, current technology, market demand, access to sites, and the advice of

agency experts. These figures are not specific agency targets for production of

seafood from aquaculture.

Many challenges face us as we aim to increase commercial seafood

production in the United States, including:

■ A complicated, inefficient, and uncertain federal regulatory process

to permit marine aquaculture facilities.

■ Need for additional research on environmental and socioeconomic

implications and ecosystem carrying capacity for marine aquaculture.

■ Lack of an adequate supporting research, development, and technical

infrastructure.

■ Need to better communicate and foster understanding on the environmental, economic, and social implications of marine aquaculture.

■ Lack of access to coastal sites for marine aquaculture facilities because

of competition for high-value land for development and tourism.

■ Rapid international growth of worldwide aquaculture with supply,

demand, and price implications for U.S. consumers and seafood

producers.

Setting the Stage

Increasing Seafood

Production from

Commercial Marine

Aquaculture

Group Current U.S. Increase Target for

Production 2025

Mollusks 100,000 245,000 345,000

Crustaceans 18,000 47,000 65,000

Finfish 340,000 760,000 1,100,000

TOTALS 458,000 1,052,000 1,510,000

Table 1. Potential scenario for increased annual aquaculture production

by 2025 (in metric tons).

Source: Nash, C.E. (2004). Achieving policy objectives to increase

the value of the seafood industry in the United States: the technical

feasibility and associated constraints. Food Policy 29(6):621–641.

NOAA AQUACULTURE PROGRAM The marine finfish Rachycentron canadum,

also known as cobia, is being farmed

commercially in Puerto Rico.
NOAA AQUACULTURE PROGRAM

NOAA 10-YEAR PLAN for MARINE AQUACULTURE | 13 | OCTOBER 2007

Many commercial and

recreational marine

fisheries in the United

States are seriously depleted, and

rebuilding them to sustainable levels

could take a long time. For example, the West Coast rockfishes have

been classified as overharvested and

the prognosis for their recovery is

dire. In some cases, rebuilding plans

for these species are estimated to

require nearly 100 years, even in the

absence of wild commercial capture

or recreational harvests.

Fisheries managers have a

limited set of tools for rebuilding

these valuable marine fisheries.

Traditional methods include reducing harvest (e.g., through size limits,

seasons, closures, and trip limits)

and limiting harvest techniques.

A second long-term management

technique is to protect and restore

critical habitat and to create closed

areas that exclude harvest (marine

protected areas).

Replenishment — or aquaculture-based rebuilding — is a third technique

that may be used to restore commercial and recreational stocks (also called

stock enhancement). This technique uses cultured juvenile fish and

shellfish released to the wild to grow and recruit into stocks to accelerate

recovery of a species or to enhance and ensure wild stocks of various

commercially, recreationally, and ecologically valuable species. Aquaculturebased rebuilding techniques are being applied in the United States for

salmon, redfish, and oysters, and research is being conducted on many

other species (e.g., white seabass and abalone in California, snook in Florida,

summer flounder in New England, and king crab in Alaska). As part of its

broad, ongoing mission for aquaculture, NOAA will further investigate the

feasibility of helping rebuild depleted U.S. species through the use of

aquaculture technologies.

Similar culture-based rebuilding programs are used in other countries.

For example, Japan has used these techniques to recover and augment a

variety of coastal marine fish species. Flounder, yellowtail, sea bream,

rockfish, herring, abalone, and scallops have shown promise as the science

of marine fisheries enhancement develops. Japanese scientists, collaborating

with fishermen, are now experimenting with releases of more than

70 species of marine fish, crustaceans, and mollusks.

Setting the Stage

Rebuilding Wild Stocks

Depleted marine finfish species, such as

lingcod, are the focus of stock enhancement

research by NOAA in the Pacific Northwest.

NOAA AQUACULTURE PROGRAM

Filter feeders, such as these farmed oysters, improve water quality in the surrounding marine

environment by consuming algae and other nutrients.
NOAA 10-YEAR PLAN for MARINE AQUACULTURE | 14 | OCTOBER 2007

The science needed to evaluate candidate species for their potential for aquaculture-based rebuilding depends on

many variables. In general, the following process is used to collect information for determining whether a species

has the traits that would allow it to be cultured for release:

■ Develop the methods to acquire, maintain, and spawn broodstock.

■ Intensively produce, rear, tag, release, and monitor juveniles after release.

■ Model rebuilding of cultured fish populations using existing fishery data, including

consideration of genetic and ecological interactions with natural fish populations.

■ Test whether hatchery-raised fish can survive to successfully recruit into the focal

and or target species populations.

■ Reduce costs for juvenile production.

Once this information is known, the

following questions can be addressed

to determine whether this technology

can be more broadly applied to rebuild

U.S. fisheries:

■ Can these fish populations

be cultured and what are their

environmental requirements?

■ Can they be economically

produced?

■ Will they survive in numbers to economically contribute to fishery rebuilding?

■ What genetic and ecological impact will they have on natural stocks?

■ How will success be monitored over time?

NOAA scientists have participated in framing these aquaculture-based rebuilding protocols, along with colleagues

from research institutions in the Unites States and in other countries. Some of the agency’s leading researchers are

testing and refining the latest scientific advances in this area of research. The information and expertise these experts

develop will help resource managers integrate aquaculture-based rebuilding as part of an ecosystem approach to

fisheries management, along with other fisheries management and habitat protection and restoration techniques

as appropriate.

REBUILDING WILD STOCKS CONTINUED

NOAA AQUACULTURE PROGRAM

NOAA's plan calls for the expansion of the research, development, and extension infrastructure that supports aquaculture development with hatcheries, diagnostic services,

advances in feeds and nutrition, and other scientific research.
NOAA 10-YEAR PLAN for MARINE AQUACULTURE | 15 | OCTOBER 2007

I

n 2005 and 2006, NOAA’s Aquaculture Program team reevaluated

program goals and strategies, using legislative mandates and NOAA

policies and history as a starting point. In addition, the team met

with a wide variety of stakeholders and federal and state agencies to gather

their input concerning the type of marine aquaculture program NOAA

should pursue.

The following principal agency responsibilities and services emerged from

the mandates and stakeholder consultations:

■ A certain and transparent regulatory structure in line with ecosystembased management is needed for marine aquaculture. This structure

needs to enable aquaculture production, safeguard environmental

resources, and balance multiple uses. The myriad overlapping

government regulations for coastal aquaculture must be coordinated

and simplified, and a framework for aquaculture in federal waters

must be established.

■ Research and development partnerships and financial incentives are

needed to support commercial aquaculture, similar to supporting infrastructure for other agriculture products and fisheries. This includes

determining the potential of technologies for aquaculture-based wild

stock rebuilding.

■ As the lead agency for the nation’s oceans and fisheries, NOAA

must provide clear, accurate, and up-to-date scientific information

to decision makers and the public regarding the environmental,

socioeconomic, and health impacts related to marine aquaculture.

■ NOAA must continue to be

engaged in international aquaculture developments. Most of

the seafood consumed in the

United States is imported, ocean

resource management is

transnational, U.S. commercial

interests participate in a global

seafood industry, and aquaculture research exchanges are

important to U.S. aquaculture

production. Aquaculture technology in many other countries

is advanced compared to the

United States. In addition, as

one of the largest markets for

aquaculture-produced seafood,

the United States should set a

global example for the use

of sustainable aquaculture

practices and encourage their

adoption by other countries.

These issues, responsibilities, and

services are restated below as the

agency’s aquaculture goals, along

with specific strategies or actions

for accomplishing each goal.

Program Goals and Strategies

NOAA AQUACULTURE PROGRAM The U.S. aquaculture industry has a farm-gate value of $1 billion annually.

© THE UNH ATLANTIC M

ARINE

AQUACULTURE CENTER

Proactive aquaculture research, including

testing technologically advanced equipment

for open ocean aquaculture, such as the feed

buoy pictured above, is needed in order to

advance marine aquaculture in the U.S.
NOAA 10-YEAR PLAN for MARINE AQUACULTURE | 16 | OCTOBER 2007

A comprehensive regulatory program for environmentally

sustainable marine aquaculture

Regulations under Existing Laws — By the end of 2007, develop policies, guidelines, and protocols for use in

the review of proposed marine aquaculture facilities by NOAA regional and program offices under current NOAA

mandates. The purpose of these reviews is to assess the impacts of aquaculture facilities and operations on fishery

resources, marine habitat (including essential fish habitat), endangered and threatened species, marine mammals,

coral reefs, coastal communities, and marine sanctuaries and, where appropriate, recommend mitigation measures

or permit conditions. These review criteria will be developed by a working group with representation from several

NOAA programs and offices, and will be based in part on information gathered from the scientific literature,

industry management practices, public consultations, and other sources.

Regulations in Federal Waters — Secure passage of the National Offshore Aquaculture legislation in 2007

and promulgate implementing regulations for a coordinated permitting process within 2 years of enactment of

legislation. A programmatic environmental impact statement (EIS), regional mapping exercises to identify suitable

and acceptable sites for offshore aquaculture, and interagency, state, and public consultations will be required as

part of the regulatory design process.

Federal Regulatory Coordination

— Work with the Environmental

Protection Agency (EPA), U.S. Army

Corps of Engineers (Corps), and

other federal, regional, and state

agencies to coordinate these reviews

to make them more timely, effective,

and specific. Examples are national

or regional general permits under

consideration by the Corps for shellfish farming, and mapping/zoning

work to steer permit applicants to

partially pre-permitted areas.

Bringing Science to Regulation and Management Decisions — Build and maintain a sufficient in-house science

capability and associated infrastructure in NMFS and in the National Ocean Service (NOS), and an external research

capability through the Office of Oceanic and Atmospheric Research (OAR) National Sea Grant Program, to fulfill

NOAA’s regulatory and public policy missions for both commercial aquaculture and aquaculture-based rebuilding

of wild stocks. This will require the expansion of NMFS, OAR, and NOS science capability during 2008–2012 to

address key regulatory issues (e.g., determining acceptable management practices for species and site selection,

aquatic animal health, and seafood safety; assessing and monitoring potential environmental, economic, and social

impacts of marine aquaculture facilities on habitat, marine life interactions, and disease transfer; and conducting

research on marine aquaculture feeds to reduce reliance on fishmeal but maintain human health benefits). For

example, by 2008 the National Aquatic Animal Health Plan will be completed and implemented in conjunction

with our federal partners, key state agencies, and industry. Additional research will be conducted to reduce

uncertainties associated with aquaculture-based rebuilding programs for wild fish stocks and threatened or

endangered marine species.

Goal 1

NOAA AQUACULTURE PROGRAM

Greater regional food supply and security is a benefit of increased domestic aquaculture

production.
NOAA 10-YEAR PLAN for MARINE AQUACULTURE | 17 | OCTOBER 2007

Development of commercial marine aquaculture and replenishment of wild stocks

Aquaculture Research Plan — Complete and implement a national aquaculture research plan in cooperation with

the Joint Subcommittee on Aquaculture, and a NOAA aquaculture research plan with appropriate NOAA offices.

Partnerships — Increase extramural funding capability based on OAR’s National Sea Grant Program and National

Marine Aquaculture Initiative and other programs that support pilot projects, laboratory research, and technology

transfer. These extramural initiatives may be based around regional centers of excellence for marine aquaculture

that would include public–private partnerships between NOAA laboratories, Sea Grant institutions, USDA, and

other federal agencies, states, universities, nonprofit research institutes, private companies, and coastal communities.

Investment Incentives — Identify and develop opportunities for DOC and other federal agencies (e.g., USDA,

Economic Development Administration, National Institute of Standards and Technology, Small Business

Administration, Farm Credit Administration, National Science Foundation, and Defense Advanced Research

Projects Agency) to provide research and development and financial support for marine aquaculture.

Major New Initiative — Identify possibilities for a major infusion of government investment in aquaculture. The

initiative could include a combination of research and development funds, grants, loans, and joint research projects

financed with federal, state, and

private funds.

Targeted Research — Based on

the research plan developed above,

conduct the key studies that will

result in the maximum public benefit.

These studies are needed by industry

and non-industry stakeholders

for development of sustainable

aquaculture systems.

Proactive Research — Proactive

research is needed to lay the groundwork for the next 10-year plan and beyond. This proactive research is focused on the future, and will explore the

feasibility of future benefits to humans that may arise from marine aquaculture. Examples may include the use of

aquaculture for algal feeds, global carbon sequestering, biofuels development, bioplastics, human health products,

and ecosystem stabilization.

Research Infrastructure — The infrastructure for conducting research on marine aquaculture in the United States

is not up to world standards. Infrastructure needs must be addressed for significant scientific advancement to

be realized.

Goal 2

NOAA AQUACULTURE PROGRAM

The marine finfish Polydactylus sexfilis, also known as Pacific threadfin or moi, is farmed

commercially in Hawaii.
NOAA 10-YEAR PLAN for MARINE AQUACULTURE | 18 | OCTOBER 2007

Goal 3

Public understanding of marine aquaculture

Conduct a continuing interactive dialogue with key stakeholders on marine aquaculture issues

representing aquaculture, commercial and recreational fishing, seafood processors and marketers,

coastal communities, and environmental interests.

Maintain an agency website that provides information on the NOAA Aquaculture Program, including

access to scientific advances, research reports, and other pertinent information.

Provide accurate, topical, and up-to-date scientific information on marine aquaculture to the public

in coordination with Sea Grant Extension/Marine Advisory Services, the NOAA Library, and the NOAA

Office of Education.

Develop a NOAA aquaculture outreach and communications plan that

will engage interested stakeholders, the media, and other targeted groups

on all levels.

Goal 4

Increased collaboration and cooperation with

international partners

Develop a NOAA international aquaculture activities plan.

Gain from technology and science developed by other countries.

Actively participate in multilateral, regional, and bilateral research and policy to enhance development

of responsible marine aquaculture and the production of safe seafood through negotiation, data, and

information sharing, scientific exchanges, and cooperative studies

Implement the FAO Code of Conduct for Responsible Fisheries, which calls for the United States to

promote responsible development and management of aquaculture.

One of NOAA’s top priorities is to better communicate and foster understanding of the

environmental, economic, and social implications of marine aquaculture.

NOAA AQUACULTURE PROGRAM
NOAA 10-YEAR PLAN for MARINE AQUACULTURE | 19 | OCTOBER 2007

I

f the requisite legislative mandates and funding are provided to

implement the strategies described above, between 2007 and 2017

the NOAA Aquaculture Program, working with federal and state

partners and stakeholders, plans to achieve or substantially contribute to

the achievement of the following outcomes:

■ Establish a fully operational and coordinated interagency permitting

system for marine aquaculture that enables aquaculture production

while safeguarding environmental resources, including an agency

capacity for assessing and monitoring short- and long-term impacts

of marine aquaculture operations.

■ Establish and maintain several regional ecosystem management

initiatives that include commercial and aquaculture-based rebuilding

activities as key components.

■ Demonstrate that offshore farming systems can be operated over

several years in a range of sea conditions, and establish new offshore

farms in the U.S. Exclusive Economic Zone (EEZ) for finfish, shellfish,

and algae.

■ Establish onshore hatcheries to produce juvenile fish and shellfish to

be stocked in marine farms—offshore, on land, and in coastal waters —

for commercial aquaculture and aquaculture-based rebuilding.

■ Determine the feasibility of culturing marine fish identified as suitable

candidates for aquaculture (e.g., cobia, redfish, pompano, cod, halibut,

sablefish, yellowtail, amberjack, Pacific threadfin, and tuna).

■ Restore and expand coastal shellfish aquaculture in areas with

appropriate carrying capacity and establish and expand the use of

offshore methods for the production of oysters, mussels, abalone,

and (possibly) scallops.

■ Advance research on techniques for farming and processing certain marine species and

seaweeds for use in nutritional,

health, and other industrial

products.

■ Advance research on

aquaculture-based rebuilding

of priority marine or estuarine

wild stock species.

■ Develop world-class

aquaculture research and

demonstration facilities.

■ Begin to determine other

benefits to society that could be

realized by marine aquaculture.

Achievement of many of these

outcomes depends on actions by the

Executive and Legislative branches

of the Federal Government to enact

new authorities for NOAA and

to provide additional financial

resources. Success will also depend

on the actions of the private sector,

states, and coastal communities to

invest the time and capital necessary

to expand the U.S. marine

aquaculture industry.

Outcomes

NOAA AQUACULTURE PROGRAM

Across the U.S., specialized high school programs, such as this one in Alabama, generate

interest in all aspects of aquaculture, from

research and technology development to

marketing.

©

ALASKA KING CRAB RESEARCH

REHABILITATION AND BIOLOGY PROGRA

M

In the U.S., aquaculture-based rebuilding techniques are being applied to salmon, redfish, and

oysters, and research is being conducted on many other species, including white seabass and

abalone in California, snook in Florida, summer flounder in New England, and king crab in

Alaska, as shown above.
NOAA AQUACULTURE PROGRAM

NOA

A

AQUACULTURE PROGRA

M

NOAA 10-YEAR PLAN for MARINE AQUACULTURE | 20 | OCTOBER 2007

The United States stands at a critical juncture in the development

and implementation of marine aquaculture in our Nation. This important technology will provide new economic and environmental

opportunities for all fisheries-dependent coastal communities. Communities

damaged by hurricanes or that have experienced reductions in wild catch

have lost their market niche, as seafood buyers have turned to imported

aquaculture products to meet market demand. In addition, seafood prices

may increase as other countries consume more and export less, making the

health and nutritional benefits of seafood less affordable. With the requisite

legislative mandates and funding, the following economic, social, and

environmental benefits can be achieved:

■ Creation of 75,000 direct and indirect jobs for every 1 million metric

tons of domestic aquaculture production (based on job creation figures

from the salmon and catfish aquaculture industries).

■ New opportunities for coastal communities and the seafood industry

to increase the domestic supply of seafood through commercial marine

aquaculture and aquaculture-based rebuilding to maintain and continue

to employ existing boats, processing facilities, cold storage, marketing,

and transportation infrastructure. These business opportunities will

create more resilient coastal communities with a more diversified

economic base.

■ Integration of commercial marine aquaculture, fishing, and aquaculture-based rebuilding activities for increased seafood production,

recreational fishing opportunities, and species and habitat restoration.

■ New domestic and global business opportunities for the U.S.

grains and feed industry, health and nutrition products, equipment

manufacturers, food processing, and other services.

■ Greater regional food supply

and security, as more of the

seafood consumed in the United

States would be grown here,

under specific conditions and

safeguards.

■ Regional ecosystem management programs that integrate

aquaculture production

supporting habitat and species

restoration, sustainable fisheries, and multiple coastal uses

(e.g., restoration of depleted

species, marsh grass and oyster

bed replanting for water quality

improvements, and alternative

source production of overfished

wild stocks).

■ Significant expansion of a

research, development, and

extension infrastructure that

supports aquaculture development with hatcheries,

diagnostic services, advances in

feeds and nutrition, and other

scientific research.

■ Assuming that aquaculture

products contribute to increased

seafood consumption, improved

health for Americans (e.g.,

fewer heart attacks, strokes,

and associated deaths).

Benefits

Red abalone, Haliotis rufescens, shown here in vertical racks, is being farmed commercially in

California.

Supplying the global aquarium trade is a

potential growth area for U.S. aquaculture.
© THE UNH ATLANTIC M

ARINE

AQUACULTURE CENTER

© HARBOR BRANCH OCEANOGRAPHIC INSTITUTION

NOAA 10-YEAR PLAN for MARINE AQUACULTURE | 21 | OCTOBER 2007

Asignificantly larger annual budget and additional staff positions

are needed for the NOAA Aquaculture Program to meet its

10-year goals and outcomes. These budget and staffing

requirements are allocated among four program components:

Administration and Regulatory Program — To establish and implement a

legal, regulatory, and administrative framework for marine aquaculture, the

current administrative budget and staff must be increased. Additional funds

will be required to:

■ Design and implement offshore legislation.

■ Conduct a programmatic EIS for offshore aquaculture.

■ Formally establish a NMFS headquarters office and aquaculture

coordinators in each of the NMFS regional offices.

■ Increase the science capabilities at NOAA laboratories to address

regulatory and public policy issues for commercial aquaculture and

aquaculture-based rebuilding.

Research and Development — Sound science and technology transfer

must be provided to develop aquaculture. A significant increase in funding,

staff, and improvement in infrastructure is required to conduct research

at NOAA science centers/labs and in partnership with industry, state,

university, and international scientific research institutions through

competitive grants.

Outreach and Education — Information must be communicated to

federal agencies, states, industry, international partners, the public, and

other interested aquaculture stakeholders. A modest increase in budget

and staffing is needed for maintaining/ upgrading the program website,

producing documentaries, holding

stakeholder meetings, gathering

and publishing scientific research,

conducting media outreach, and

providing additional Sea Grant

Advisory and Extension Services.

International Activities — Modest

funding in the past has been provided by OAR, the National Marine

Aquaculture Initiative, NMFS,

and NOS for international travel,

conferences, and scientific

exchanges; however, the majority

of international activities are not

yet coordinated. Opportunities to

maximize benefits to the nation

from a coordinated approach to

international activities will be

detailed in a NOAA Aquaculture

international activities plan

developed over the next 2 years.

Budget and Staffing Requirements

The U.S. currently supplies aquaculture technology, services, investment capital, broodstock,

and feedstuffs to a global aquaculture industry.

Commercial fishermen in New England are

using new technology to farm blue mussels,

Mytilis edulis, on submerged ropes in the

ocean.
NOAA AQUACULTURE PROGRAM

NOAA 10-YEAR PLAN for MARINE AQUACULTURE | 22 | OCTOBER 2007

The NOAA Aquaculture Program must overcome several internal and external hurdles to

meet its goals, including:

Budget, Staffing, and Infrastructure — The program needs to reach a minimum critical size in

terms of budget, staffing, and infrastructure to fully achieve program goals and objectives. However,

given the uncertain budget climate, staffing and financial resources for a fully operational program are

not guaranteed.

Legislation and Regulatory Mandates — The program is currently operating under statutory authorities that, for the most part, were not provided specifically with the regulation of aquaculture in mind.

The challenge is to address aquaculture growth in the marine environment within the context of NOAA

environmental stewardship mandates. The conduct of NOAA’s responsibilities for review of aquaculture

permitting requests in coastal waters should be better coordinated, both internally and with other federal

agencies. If Congress enacts offshore aquaculture legislation, NOAA will be charged with issuing permits

for aquaculture in federal waters and coordinating actions of other permitting agencies. NOAA will also

be authorized to implement a marine aquaculture science and research program

Stakeholder Support — The program needs the support of a broad range of stakeholders—particularly

those in coastal communities—to create opportunities for marine aquaculture to develop sustainably,

while protecting the marine environment and privileges of other users of marine resources.

Challenges

NOAA needs the support of a broad range of stakeholders to create opportunities for marine aquaculture to develop

sustainably, while protecting the marine environment and privileges of other users of marine resources.
NOAA 10-YEAR PLAN for MARINE AQUACULTURE | 23 | OCTOBER 2007

LEGISLATIVE DRIVERS

Coastal Zone Management Act – Requires NOAA to

provide assistance to coastal states to support comprehensive planning, conservation, and management for

living marine resources, including planning for the siting of aquaculture facilities within the coastal zone.

Endangered Species Act – Requires NOAA to take

various actions to protect and recover all threatened

and endangered species under the jurisdiction of the

Department of Commerce, including actions to address

potential impacts from marine aquaculture facilities.

Magnuson-Stevens Fishery Conservation and

Management Act – Requires NOAA to review activities

in marine waters that may have impacts on a managed

species or essential fish habitat; aquaculture activities

are therefore subject to review under this Act.

Marine Mammal Protection Act – Requires NOAA to

take various actions to protect all marine mammals

under the jurisdiction of the Department of Commerce,

including actions to address potential impacts from

marine aquaculture facilities.

Merchant Marine Act – Provides authority for NOAA

to provide loans for the construction of aquaculture

facilities.

National Aquaculture Act – Established the overall

national policy that, “... it is ... in the national interest,

and it is the national policy, to encourage the development of aquaculture in the United States” [Section

2(c)].” Under the Act, the Secretary of Commerce is

authorized to “provide advisory, educational and

technical assistance” and to “encourage the implementation of aquacultural technology in the rehabilitation

and enhancement of publicly owned fish and shellfish

stocks ... and in the development of private commercial

aquacultural enterprises.”

National Environmental Policy Act – Requires NOAA

to consider all reasonably foreseeable environmental

effects of its proposed actions, including potential

effects of marine aquaculture facilities.

National Sea Grant College Program Act – Provides

authority for NOAA to conduct research, extension,

education, and communications to achieve a sustainable environment and to encourage the responsible use

of America’s coastal, ocean, and Great Lakes resources,

including support for aquaculture.

Saltonstall-Kennedy Act – Provides authority for NOAA

to award contracts, grants, or cooperative agreements

for fisheries research and development projects

addressing any aspect of U.S. fisheries, including but

not limited to harvesting, processing, aquaculture,

marketing, and associated infrastructures.

POLICY DRIVERS

1998 NOAA Aquaculture Policy – Calls for a successful

program to meet public needs for aquaculture development and environmental protection to focus on:

–Research, development, and technology transfer.

–Financial assistance to businesses.

–Environmental safeguards, including

regulatory and permit procedures.

–Coordination with federal, state, and local

agencies, as well as industry, academia, and

foreign institutions.

This policy defined aquaculture as: “The propagation

and rearing of aquatic organisms in controlled or

selected aquatic environments for any commercial,

recreational, or public purpose. Potential purposes

of aquaculture include bait production, wild stock

enhancement, fish culture for zoos and aquaria,

rebuilding of populations of threatened and

endangered species, and food production for

human consumption.”

1999 Department of Commerce Aquaculture

Policy – Calls for achievement of the following

goals by 2025:

–Increase the value of domestic aquaculture

production (freshwater and marine) from the

present $900 million annually to $5 billion.

–Increase the number of jobs in aquaculture from

the present estimate of 180,000 to 600,000.

–Develop aquaculture technologies and methods

both to improve production and safeguard the

environment.

–Double the value of non-food products and

services produced by aquaculture to increase

industry diversification.

–Enhance depleted wild fish stocks through

aquaculture, thereby increasing the value of

both commercial and recreational landings and

improving the health of our aquatic resources.

Appendix 1: Legislative and Policy Drivers
NOAA 10-YEAR PLAN for MARINE AQUACULTURE | 24 | OCTOBER 2007

2003 Code of Conduct for Responsible Aquaculture

Development in the United States Exclusive Economic

Zone – A voluntary code that includes the following

objectives:

–Promote the contribution of aquaculture to

seafood supplies.

–Promote marine stewardship.

–Establish principles that embrace environmental,

operational, management, and social concerns.

–Provide standards of conduct for government,

companies, and individuals.

An Ocean Blueprint for the 21st Century

(September 2004) – The U.S. Commission on Ocean

Policy’s Final Report to Congress called on the Secretary

of Commerce to:

–Design and implement national policies for

environmentally and economically sustainable

marine aquaculture.

–Develop a comprehensive, environmentally

sound permitting, leasing, and regulatory

program for marine aquaculture.

–Expand marine aquaculture research, development, training, extension, and technology transfer,

including a socioeconomic component.

–Set priorities for research and technology,

in close collaboration with the National Sea Grant

College Program, states, tribes, academia, industry,

and other stakeholders.

–Work with the FAO to encourage and facilitate

worldwide adherence to the aquaculture provisions

of the Code of Conduct for Responsible Fisheries.

U.S. Ocean Action Plan (December 2004) – Includes

the following recommendation:

In the 109th Congress, the Administration will

propose a National Offshore Aquaculture Act

that provides the Department of Commerce clear

authority to regulate offshore aquaculture. This

bill will empower the Department of Commerce

to assist the private sector in obtaining necessary

Federal agency approval for establishing an offshore aquaculture facility. The Department of

Commerce has primary responsibility for the

management and conservation of living marine

resources in the EEZ and, as such, will ensure that

offshore aquaculture enterprises operate in an

environmentally sustainable manner that is

compatible with existing uses.

NOAA’s 2005 Annual Guidance Memorandum for Fiscal

Years 2008–2012 – Includes the following advice for the

Aquaculture Program:

–Create environmental standards and appropriate

monitoring and evaluation protocols that will set

a new commercial code of conduct for marine

aquaculture ... [and provide a] regulatory structure

and robust scientific and technical support for

marine aquaculture.

National Offshore Aquaculture Act of 2007

(H.R. 2010 and S. 1609) – The act:

–Includes authority for the Secretary of Commerce

to issue offshore aquaculture permits.

–Requires the Secretary of Commerce to establish

environmental requirements.

–Requires the Secretary of Commerce to work with

other federal agencies to develop and implement

a coordinated permitting process for offshore

aquaculture

–Exempts permitted offshore aquaculture from

fishing regulations that restrict size, season and

harvest methods.

–Authorizes a research and development program

for all types of marine aquaculture.

–Authorizes funding to carry out the Act and

provides for enforcement of the Act.

APPENDIX 1: LEGISLATIVE AND POLICY DRIVERS, CONTINUED
National Oceanic and Atmospheric Administration

NOAA Aquaculture Program Office

1315 East-West Hwy.

SSMC-3 - Route: F/AQ

Silver Spring MD 20910

Phone: (301) 713-9079

www.aquaculture.noaa.gov