Minimizing seabird by‐catch in industrial fisheries

Minimizing seabird by-catch requires fisheries management strategies that will ensure the effective implementation of best practices and achieve by-catch reduction targets. This is the major current challenge. In their featured paper, Maree and colleagues conclude that their results provide ‘a strong case for the mandatory adoption of bird-scaring lines in trawl fisheries with high densities of scavenging seabirds’ (Maree et al., 2014, p.1). However, there are two broad approaches to managing fisheries for by-catch reduction: command-andcontrol approaches based on mandatory area/seasonal closures, fishing practices, gear modifications and by-catch reduction devices (BRDs); and incentive-based approaches designed to motivate fishers to minimize by-catch through a combination of incentives to reduce by-catch and penalties for failure. Below, I discuss the advantages of incentive-based approaches over command-and-control, and summarize the lessons learned from successful strategies. Incentive-based approaches are designed to align fishers’ incentives with societal goals, and have several advantages for by-catch reduction in fisheries (Hall & Mainprize, 2005; Pascoe et al., 2010). Management is focused directly on by-catch reduction targets, such as reducing the number of seabird mortalities, rather than the technical details of specific by-catch reduction measures, such as the material, length and colour of bird-scaring lines. Regulations can be simpler and adjusted more easily, allowing for stronger targets over time and adaptive management of changing fisheries in dynamic ecosystems. In most fisheries, single by-catch reduction measures are insufficient, and a combination of changes in fishing practices, gear modifications and BRDs is required. Incentive-based approaches are flexible, enabling captains and vessel owners to decide on the specific suite of by-catch reduction measures that will be most cost-effective for a given set of conditions. This can stimulate innovation and collaborative experimental research aimed at improving the cost-effectiveness of by-catch reduction measures (Melvin et al., 2001). Indeed, the most cost-effective by-catch solutions are often identified by fishers themselves (Hall, Alverson & Metuzals, 2000). Incentive-based approaches can also foster information-sharing on best practices and areas with high by-catch rates, and investment in compensatory mitigation including contributions to by-catch reduction in lower-value fisheries. In contrast, command-and-control approaches do not provide incentives for further innovation, and are often poorly implemented because fishers are not motivated to implement them effectively (Branch et al., 2006; Pascoe et al., 2010). Industrial fisheries that have already achieved substantial reductions in seabird by-catch can provide insights into the key elements of successful strategies. Successful strategies integrate clear objectives and targets, a range of accepted best practices, appropriate incentives, and effective monitoring. Leadership may be provided by government agencies, major wholesale seafood buyers like Walmart or sustainable seafood certification programmes such as the Marine Stewardship Council. The broad goal of minimizing seabird by-catch needs to be translated into more specific management objectives and measurable targets, such as the reduction of seabird mortalities in each fleet below a predefined number per unit of fishing effort. For threatened species, targets may be designed to reduce by-catch below levels that would have a measurable effect on population dynamics. These targets can be strengthened over time. There is a growing body of research on best practice in seabird by-catch in industrial fisheries (see Agreement on the Conservation of Albatrosses and Petrels by-catch mitigation fact sheets, available at http://www.acap.aq). In industrial trawl fisheries, bird-scaring lines are accepted best practice and are mandatory in some fisheries, including the South African deep-water hake trawl fishery. While birdscaring lines can be highly effective, they do not eliminate seabird by-catch entirely and may have unintended consequences, such as shifting by-catch from one species group to another (Maree et al., 2014). In contrast, avoiding discards and offal discharge can reduce by-catch of all seabird groups to negligible levels by removing the feature that attracts seabirds during fishing operations (ACAP, 2013). While several options for reducing discharges have been identified, including onboard fish meal plants and batch processing, these can be costly and are rarely implemented on smaller and older vessels. The challenge remains to develop management frameworks that will motivate fishers to bs_bs_banner