Government-industry cooperative fisheries research in the North Pacific under the MSFCMA.
Karp, William A. ; Rose, Craig S. ; Gauvin, John R. 等
Introduction
In the United States, the Federal Government is responsible for
management of most commercial fish stocks in the Exclusive Economic Zone
(EEZ) from 3 to 200 nmi offshore. In most cases, management of these
stocks is carried out under provisions of the Magnuson-Stevens Fishery
Conservation and Management Act (MSFCMA).
The MSFCMA was first authorized in 1976, following establishment of
the U.S. EEZ. Off the coasts of California, Oregon, Washington, and
Alaska, however, NOAA's National Marine Fisheries Service (NMFS)
and its predecessor, the Bureau of Commercial Fisheries (BCF) had
established a tradition of conducting cooperative research with U.S.
fishing companies, and with agencies and organizations from foreign
nations long before that date. Following implementation of MSFCMA,
policies and regulations for continued cooperative research activities
were put in place, and this regulatory framework has evolved during the
subsequent 25 years in response to changes in the Act itself and to
specific requirements within each of the five regional administrations
of NMFS. The last reauthorization of MSFCMA occurred in 1996 (Anonymous,
1996).
The history of cooperative research in the waters off the U.S. west
coast and Alaska is long, and it has been remarkably successful and
productive. For example, in the Gulf of Alaska, exploratory fishing
began in the late 1940's (Ronholt et al. (1)). Bottom trawl surveys
were conducted from research and chartered commercial fishing vessels and participants included the BCF, the Fisheries Research Board of
Canada, and the International Pacific Halibut Commission. These early
research surveys were the precursors of routine, regular (annual,
biennial, and triennial) ground-fish surveys now carried out by NMFS off
the Pacific coast, including Alaska. Most of these surveys are conducted
aboard chartered commercial vessels, because the amount of sea time
required greatly exceeds the amount of research vessel time available.
These surveys are designed and directed by NMFS, the sampling and data
collection is conducted by NMFS personnel, and great care is taken to
address concerns regarding consistency. Nevertheless, the work is
considered to be cooperative and relies heavily on the skill,
experience, and participation of skippers and crews for carrying out the
fishing operations in support of the scientific objectives of the
surveys.
The AFSC resource assessment survey database constitutes the most
important and extensive time series available to fisheries scientists in
this region. While it may be the most noteworthy product of ongoing
cooperation, it is by no means unique. For more than 30 years, NMFS and
the fishing industry have cooperated on a broad range of studies in such
areas as commercial and research gear development, studies of marine
mammal's and seabirds, and collection of fish samples for
utilization research, age and growth studies, feeding behavior, maturity
and reproduction research, and other aspects of fish biology and
ecology. In the Gulf of Alaska and the Bering Sea/Aleutian Islands
(BSAI) areas, ongoing industry/agency cooperation supports a substantial
marine fisheries observer program which is responsible for collecting
data essential to stock assessment and inseason management of catch and
bycatch. Costs of this program are shared between the agency and the
industry (Karp and McElderry, 1999).
As the Alaska groundfish fisheries have evolved during the last 30
years, so have the technology and information needs of scientists,
managers, and participants in the fishery. For example, increased
emphasis on bycatch reduction and reduction of marine mammal and seabird
takes has stimulated developments in gear technology and fishing
methods, while inseason fleet quota monitoring requires accurate
real-time catch accounting, and vessel-specific quota monitoring further
increases the accuracy and precision requirements for catch accounting.
The research needed to address these kinds of questions may be carried
out independently by NMFS or participants in the fisheries, but there is
often considerable advantage to be gained from a cooperative approach.
In this paper, we review some provisions for cooperative research,
describe three cooperative research studies which were designed to
evaluate questions pertaining to catch weight estimation, catch
composition sampling, and bycatch reduction, and discuss factors which
contribute to the success of cooperative research activities.
Provisions for Cooperative Industry/Government Research
Fisheries research conducted within the U.S. EEZ may be authorized
either through a Letter of Agreement (LOA), a Scientific Research Permit
(SRP), an Exempted Fishing Permit (EFP), or an Exempted Educational
Activity Authorization (EEA). LOA's are generally issued to non
NMFS research institutions such as state fishery agencies, universities,
or foreign government agencies carrying out research in U.S. waters.
SRP's are required for all NMFS research activities carried out
aboard government-operated or chartered vessels operating under
contracts. EFP's are required for industry-sponsored research when
suspension of fishing regulations is required (i.e. when fishing would
occur in a closed area or during a closed season, or when a prohibited
type of gear would be used). EFP's are also required if
compensatory fishing is involved. When compensatory fishing is
authorized, the vessel(s) involved are allowed to harvest additional
fish after the research has been concluded and to sell this fish to help
offset research costs. EEA's are required for educational field
trips and small-scale sample collecting.
Even though SRP's are not mandated under MSFCMA, NMFS policy
requires that they be issued. In addition to describing the planned
research and the need for the work, concerns regarding potential impacts
of the research on endangered species, marine mammals, and the
environment must be addressed in an SRP.
The LOA's, SRP's, and EEA's are issued by NMFS in
accordance with agency directives and guidelines. The process for
issuing EFP's, however, is more complex. In general, an application
which details the reason for the proposed research, the experimental
design and procedure, and the required allocations of fish (if any) must
be submitted. The application is first reviewed by NMFS (although
applications are often developed in cooperation with NMFS). Following
satisfactory review by NMFS, the application is reviewed by the
appropriate regional Fishery Management Council (FMC). At this stage it
may be endorsed, rejected, or sent back to the applicant with
recommendations for resubmission. If endorsed by the appropriate FMC,
the application is published in the Federal Register to allow
opportunities for public comment. Then, providing it meets legal and
policy requirements, the permit is issued. Specific permit requirements
are detailed in the relevant fishery management plans. Agency
participation is not required under an EFP, but industry organizations
may work closely with agency scientists when planning and conducting
research under an EFP.
An additional vehicle for cooperative research is provided under
Public Law 91-412 (U.S. Code 1525) (Anonymous, 1970). This statute
allows the Secretary of Commerce to engage in joint projects with
nonprofit organizations, research organizations, or public organizations
or agencies, and apportion the costs equitably. For example, a nonprofit
organization, such as a research foundation, could cooperate with NMFS
to expand the scope of a resource assessment survey by covering costs
associated with provision of an additional chartered vessel. Research
conducted under such an arrangement would still require an SRP and would
also require a Memorandum of Understanding between the agency and the
nongovernmental organization involved. Thus, even though authorization
and permitting requirements may depend on whether the work is initiated
by the industry or the agency, on the source of funding, or on the
objectives of the research itself, it is usually possible to implement a
well designed research study which involves industry/agency cooperation
in the Gulf of Alaska and the BSAI.
Example 1: Bycatch Reduction
Background
An important aspect of groundfish management in the Gulf of Alaska
and Bering Sea Aleutian Islands concerns the so-called prohibited
species catch (PSC). In the groundfish management plans for these
regions, certain species are considered to be fully utilized by other
fisheries and their possession aboard groundfish vessels is restricted
or prohibited. For example, trawlers are prohibited from retaining
Pacific halibut, Hippoglossus stenolepis, and several important Alaska
trawl fisheries often close prematurely when their halibut bycatch
allowances are reached (Pennoyer, 1997).
Three approaches are available to the industry for reducing halibut
bycatch mortality: avoidance of areas where bycatch rates are high,
reduction of handling mortality, and modification of fishing methods to
reduce bycatch rates. Avoidance measures have been quite successful, and
the fleets now take advantage of retrospective data analysis and
real-time catch reporting to avoid high halibut bycatch areas. However,
target species catch rates are often high in areas of high halibut
abundance such that avoidance of these areas will likely reduce a
vessel's daily production and therefore income. Reduction of
handling mortality is also effective.
Halibut caps are expressed as metric tons of halibut mortality and
observers are trained to determine the condition (and hence survival
rate) of halibut returned to the sea. Survival rates may be enhanced by
certain fishing practices, and by taking steps to return incidentally
caught halibut to the sea as rapidly as possible. Innovations in gear
technology and fishing methodology have also been effective in reducing
the retention of intercepted halibut, albeit often at the cost of
reduced catch rates for target species. However, owners and operators of
some flatfish trawlers have been particularly successful in reducing
halibut bycatch rates, and the following section describes research
which was initiated to identify one of the more promising innovations
and evaluate its effectiveness during a directed flatfish fishery.
Approach
The Groundfish Forum (2), a fishing vessel owners association,
submitted an EFP application to test a halibut excluder device for
flatfish trawls in April 1998. The EFP was developed with assistance
from scientists at the NMFS Alaska Fisheries Science Center and
specified the quantities of catch and bycatch species that would need to
be caught to carry out the experimental design of the study. The fishing
vessel for conducting the EFP was selected through a request for
proposals solicitation distributed to owners of interested flatfish
trawlers. Individuals submitting proposals were required to describe
their proposed bycatch reduction devices and provide necessary
supporting information, including fishing practices and resources
available to support observers who would be responsible for documenting
the quantity and composition of catch and bycatch from each trawl.
Summary
The four applications submitted were evaluated by a team of NMFS
scientists based on expected effectiveness, history of previous testing,
and evaluation of the suitability of the vessel and its fishing gear. A
rigid grate design, submitted by the owner of the 36-m (117-foot) F/V Legacy was selected.
The halibut excluder consisted of a rigid grate mounted at an angle
(bottom further forward than top, approximately 28[degrees] slope) in
the intermediate section of the net. Fish approaching the grate from the
mouth of the net could either pass through the 15 x 15 cm openings into
the aft section of the net or be deflected upward toward an escape
tunnel. An auxiliary deflector grate was installed with a top-forward
slant ahead of the main grate to direct fish downward. It was similar in
construction to the main grate but with 7.6 x 7.6 cm openings. The back
edge of the deflector and the main grate formed a 23 cm wide slot
through which fish had to pass to reach an escape tunnel (Fig. 1).
[FIGURE 1 OMITTED]
Since the experimental design required more tows than could be
accomplished by a single vessel in the available time, a second vessel
was selected, the smaller 33-m (107-foot) F/V Alliance. Tests were
conducted in 1998 in the Gulf of Alaska on a deepwater flatfish complex
including the economically important flatfish rex sole, Glyptocephalus
zachirus; Dover sole, Microstomus pacificus; and flathead sole,
Hippoglossoides elassodon, and the low-value but abundant arrowtooth
flounder, Atherestes stomias.
The experimental design involved paired tows for each vessel. The
first tow in each pair or block (control or experimental) was determined
randomly, and the second tow was carried out as closely in time and
space to the first as possible. Tow duration varied between blocks, and
data were analyzed on a catch-per-distance-towed basis. Catch sorting
and weighing were carried out by trained, certified observers with
assistance from the crew and NMFS scientists.
The combined data sets indicated that, overall, the excluder
retained only 6% of the halibut while excluding only 38% of the
aggregated deepwater flatfish species. Retention rates for individual
flatfish species varied between 48% and 79%. Retention rates were
similar for both vessels for all species except rex sole, with a
tendency for the larger F/V Legacy to allow more escapement than the F/V
Alliance. Larger halibut were excluded more effectively than smaller
individuals, although only fish weighing 3 kg or less were retained in
high (46% by weight) proportion. Since length sampling of target
flatfish was not a high priority, size-specific retention rates could
not be determined.
This research demonstrated the effectiveness of the rigid grate
halibut excluder device in reducing halibut bycatch. It was also evident
that the device could be handled successfully on a small
catcher-processor vessel such as the F/V Alliance. Reduction in catches
of some target species was, however, of concern and the inability to
determine size-specific retention rates of target species is
unfortunate.
Further research to evaluate size-specific retention rates and
mechanisms for reducing an accumulation of large fish and debris in
front of the mesh is warranted, and the investigators suggest that
evaluation of mesh excluder systems, which are easier to handle, also be
evaluated. Further details can be found in Gauvin and Rose (2001) and
Rose and Gauvin (2001).
Example 2: Species Composition Sampling
Background
Sampling for species composition aboard commercial vessels presents
unique challenges. Catches may be large and varied, particularly aboard
bottom trawlers. Access to the catch may be restricted because of space
limitations or processing and operational requirements, and
stratification by size and species may occur in the codend. Random or
systematic sampling of catch is required for proper characterization of
catch composition but may be difficult to achieve.
When fleetwide quota monitoring is the only management goal,
within- or among-haul sampling variability may not be of great concern.
This is because inaccuracies due to sampling variability generally
average out across the fleet and, since all vessels must stop fishing as
soon as the overall quota is reached, vessel owners are not greatly
concerned about sampling difficulties on their individual vessels.
However, when catch or bycatch quotas are managed at the vessel level,
managers and owners quickly recognize the potential consequences of
biased sampling, and the sampling and estimation process may receive
greater scrutiny.
During the last few years, the North Pacific Fishery Management
Council (NPFMC) has implemented a number of vessel-specific catch and
bycatch programs, and a great deal of attention has been focused on
species composition sampling by observers. Sample sizes are often small
relative to catch sizes (even a 500 kg sample is small relative to a 30
t or even 150 t catch), and the random sampling requirement may be
compromised by vessel operations such that observers only have access
to, for example, the first fish to be spilled from the codend after the
catch has been dumped. In some of these programs, individual vessels
must stop fishing when they reach their catch limit for any of the
allocated species, and industry members have raised serious concerns
regarding the accuracy of sample-based catch accounting. This may place
observers in difficult situations while at sea and has the potential to
undermine confidence in the overall catch estimation process.
Thus, both the fishing industry and NMFS identified a need to
better understand the problems associated with catch composition
sampling in certain fisheries and then to seek solutions to some of
these problems. Consequently, the Groundfish Forum took the initiative
to draft an EFP application which sought improvements in species
composition sampling through identification and quantification of
potential inaccuracies of existing sampling practices. The concept and
experimental design were developed with the assistance of NMFS
scientists.
Approach
The study was designed to examine species composition sampling
aboard a trawler targeting flathead sole in the Bering Sea and catching
mixed flatfish and roundfish. Interested fishing companies were asked to
prepare proposals explaining how catch processing could be managed on
their vessels to meet the sampling, catch census, and discard weighing
requirements of the study. The factory trawler American No. 1 was
selected. NPFMC and NMFS approved the EFP application which provided for
a sufficient quantity of catch and bycatch (672 t in total) to support
the sample size requirement for 62 hauls.
From each haul, six 100 kg samples were taken at random for
estimation of species composition, then all remaining halibut, snow
crabs, Chionoecetes spp., and skates, Rajidae, were removed and weighed.
Production and discard records were also maintained.
Following the fieldwork, the data were analyzed to compare
sample-estimated weights to census-based weights for skates, Pacific
halibut, and snow crabs (crab comparisons were based on numbers of
individuals), and to compare haul-specific, daily, and total-cruise
estimates based on observer samples with those based on production and
discard estimates for retained species (walleye pollock, Theragra
chalcogramma; Pacific cod, Gadus macrocephalus; yellowfin sole, Limanda
aspera; Alaska plaice, Pleuronectes quadrituberculatus; and flathead
sole). Data from individual samples within hauls were also analyzed on a
species-by-species basis to determine if stratification (sorting by
species and/ or size) occurred.
Summary
Even though each method has serious shortcomings, species
composition estimates based on observer sampling were generally similar
to estimates based on vessel production plus discards at the haul and
cruise level. For commonly occurring species (each making up 15-20% of
the composition of individual catches), catch estimates agreed well and
variances were low, even at the haul level. However, for bycatch species
(generally making up less than 2% of the composition of individual
hauls), variances associated with catch estimates were high,
particularly at the haul level although agreement between estimates
improved when catches were aggregated to the week or cruise level.
Within-catch stratification was observed for walleye pollock, yellowfin
sole, Pacific cod, Alaska plaice, and "others." Stratification
was relatively strong for pollock, yellowfin sole, and Pacific cod and
could account for up to 20% of pollock catch estimation variability.
Stratification was not detected for crabs. Catches of skate and Pacific
halibut were too small to analyze for stratification trends. Sampling
conditions during this research cruise were ideal; access to the catches
was unrestricted so that observers were able to collect replicate random
samples without difficulty. This type of situation rarely occurs during
normal fishery operations.
Even though stratification within catches is of concern, this study
supports the perspective that current sampling methods are appropriate
for fleetwide monitoring of most catch and bycatch quotas. Variability
may be high, however, particularly for nontarget species. Stratification
may contribute substantially to this variability although its effects
may be ameliorated by drawing several random samples from each haul.
Observer sampling and production plus discard methods generally produce
comparable results.
Concerns arise for the flathead sole fishery and other fisheries
with similar catch characteristics, when monitoring for rare bycatch
species is on an individual haul or daily basis. Over- or underestimates
of rare species can be expected for individual hauls. Thus, the
haul-by-haul catch monitoring requirements of individual vessel quota
managed fisheries may be difficult to achieve. Many of the vessels
participating in the Community Development Quota program in the Bering
Sea operate under a requirement that accounting against individual
quotas be based on samples taken by observers from each haul.
Uncertainty in the resulting haul-by-haul catch estimates may result in
premature closures for some vessels and delayed closures for others.
As a result of this study, sampling limitations are better
understood by NMFS and the fishing industry. This shared perspective may
lead to cooperative solutions to some problems, such as modifications to
vessel operations and observer practices to mitigate the effects of
codend stratification. It may also result in initiatives to redesign
management programs based on unrealistic sampling expectations and,
perhaps, to more realistic standards for the design of new programs.
Example 3: Estimation of Catch Weight
Background
In the large-scale catcher-processor trawl fisheries of the BSAI,
observers generally estimate catch weight by first determining the
volume of the catch and then applying a density factor (volume to weight
conversion factor) to calculate weight. In some cases, marked and
illuminated holding bins are used to contain individual catches, and
volume measurement is relatively straightforward. In most situations,
however, suitable bins are not available and observers must resort to
making measurements of the codend, using these measurements to estimate
catch volume, and then making the conversion to weight using a density
factor.
Until recently, managers were concerned only with fleetwide catch
estimates so that vessel-to-vessel variability in catch accounting was
not taken into account. However, with the advent of vessel-specific
management requirements, the need to address vessel specific catch
accounting accuracy issues became apparent. Several alternatives for
improving catch weight determination are available including direct
weighing at sea and improved, standardized methodologies for estimating
catch volume coupled with improved density factors.
NMFS recognized the need to evaluate current methods and new
approaches but understood that the success of this type of evaluation
would depend on the applicability of their findings in commercial
fishing situations. Since the results of this research might be used to
support potentially unpopular regulatory change, the independence and
objectivity of the study was of paramount importance.
Approach
Even though industry participation and cooperation were essential
to the success of this research, the study was initiated and designed by
NMFS, and the experimental design required NMFS to direct the fishing
and processing of the vessel. The participating company would be
required to equip its vessel with a motion-compensated flow scale,
ultrasonic sensors for measuring depth of fish in bins, and to perform
other modifications. They would also be required to conduct research
tows within and outside the normal fishing seasons. NMFS issued a
request for proposals (RFP) to fishing companies interested in providing
a factory trawler with the crew and equipment required to perform the
work. Companies responding to the RFP had to address all the
requirements laid out in the Statement of Work and provide a bid price,
the amount they were willing to pay the government. After the contract
was awarded, NMFS issued an SRP which authorized fishing outside the
normal fishing season, consistent with the research plan. In this
instance, the vessel was allowed to retain catches taken during the
research study.
Fieldwork was carried out in 1996 and 1997, although only the 1997
work is summarized here (Dorn et al.,1999). The objectives of this
research were to determine the accuracy of a flow scale and evaluate
procedures for monitoring flow scale performance, evaluate the accuracy
of volumetric methods of catch weight determination, evaluate the use of
ultrasonic bin sensors for determining fish volume in holding bins,
obtain accurate density factors for use in volume to weight conversion
for walleye pollock catches, and evaluate current and alternative
methods used by observers to determine density.
The overall study design required between 150 and 200 individual
trawls to be taken over a range of catch sizes. This provided the basis
for conducting comparisons of catch weight estimates obtained from the
flow scale with volumetric estimates obtained from codend measurements,
direct measurements of bin volume, or ultrasonic (bin sensor)
measurements of bin volume.
Scale performance was closely monitored during the study.
Evaluation of observer methods for estimation of fish density was
conducted by estimating density directly (weighing known volumes of fish
on the flow scale) and a new method for density estimation by observers
was tested. This utilized a prototype sampler designed to address
problems with standard observer density estimation methods which utilize
small perforated baskets. The prototype was constructed from a plastic
barrel of approximately 55 gallons (0.21 [m.sup.3]) and was designed for
ease of filling, emptying, and volume measurement by observers.
Summary
The flow scale was found to be a reliable tool for measuring catch
weights and it operated within established error limits throughout the
project. However, comparisons with fish samples of known weight
indicated a consistent positive bias of approximately 1% during this
experiment (Dom et al., 1999).
Codend volume measurements were found to be consistent and reliable
although a tendency for overestimation of volume (or reduction of
density) for large codends was apparent when codend volume/density based
weight estimates were compared with flowscale observations. Bin volume
measurements (for this ideal situation where bins were properly
calibrated, marked, and illuminated) were found to be very precise.
Ultrasonic bin sensor methods were also found to be reliable except when
bins were relatively full.
Results obtained with the density sampler were encouraging. They
were consistent and did not vary by observer. Overall, density estimates
obtained by the basket and density sampler methods compared well with
estimates obtained from flowscale/bin volume methods while
flowscale/codend volume estimates tended to indicate higher density
values. Based on these results, the investigators recommended changes
(increases) in the standard density factors for pollock. They also
recommended changes in observer training to improve volumetric estimates
of large codends (Dom et al., 1999).
Discussion and Overall Summary
While each of these studies reviewed here was designed to address a
specific area of concern, they share several of the attributes of
successful cooperative research. NMFS and the fishing industry have
broadly overlapping interests in reducing bycatch, understanding better
the constraints on accurate catch accounting, and implementing
improvements in catch accounting systems. Furthermore, agency and
industry catch accounting concerns have become more acute with the
implementation of management programs which require monitoring of
individual vessel performance. Thus, NMFS and the fishing industry
recognized the need for each of these studies. Industry took the
initiative in the first two cases, and took advantage of EFP provisions
and the opportunity to work in partnership with NMFS. In the third case,
NMFS identified the need to carry out the work, and determined that
contracting with a fishing company would be necessary. As in all
situations where the agency initiates the research, an SRP was required
for this study.
When the Groundfish Forum initiated the bycatch study they
recognized the advantages of working with NMFS scientists knowledgeable
in the field of experimental design and fish behavior in relation to
fishing gear. The concept of evaluating potential participants on the
basis of the design of their bycatch reduction device was particularly
innovative and would have been difficult to implement in a
NMFS-initiated study. The Groundfish Forum's ability to act quickly
to implement the work following approval of the EFP illustrates an
additional benefit of the industry-initiated approach.
The catch composition sampling study was also initiated by the
Groundfish Forum. NMFS scientists had been working on improved sampling
protocols, enhanced observer training, and industry outreach to address
sampling accuracy concerns, and they recognized the opportunities
afforded by the Groundfish Forum research proposal. The Groundfish Forum
was able to develop its proposal in response to industry concerns
regarding the potential problems associated with sampling biases when
catch accounting occurs on a haul or vessel-specific basis. And, again,
they were able to implement the study much more rapidly than would have
been the case in a government-initiated study.
NMFS initiated the catch-weight estimation study. Evaluation of
flowscale performance at sea was essential given the direction of the
NPFMC to require these systems aboard certain vessels. NMFS took
advantage of this opportunity to evaluate current and innovative
volumetric methods and an improved method for density estimation at sea.
It was essential that the work be carried out aboard a commercial vessel during normal, production fishery operations. The direct participation
of fishing company personnel contributed markedly to the success of the
work and to the credibility of the results. However, the contractual
arrangement did provide government scientists with the authority to
direct scientific operations and to make changes in the research plan
when minor problems arose. As a consequence of this study, NMFS adopted
a revised standard density factor for converting pollock catch volume
estimates to estimates of weight. Because the new density factor was
higher than the one previously employed, this result was not popular
with the fishing industry. Therefore the results received a high degree
of scrutiny. The results of cooperative research cannot always be
expected to be welcomed by all parties involved.
Integral to each of these studies were the certified observers of
the NMFS North Pacific Groundfish Observer Program. Observers are
deployed aboard groundfish vessels to document catch quantity and
composition; their training and experience makes them uniquely qualified
to collect research data in studies of the type described herein.
Furthermore, each of these studies was concerned, to some degree, with
observer sampling methodology, and the catch weight and catch
composition sampling studies provide significant opportunities for
evaluating and improving observer data collection protocols. The catch
sampling requirements for studies of this type are often extremely
demanding, and the availability of suitably trained and experienced
field biologists is of paramount importance. Because of the involvement
of observers in these studies and, especially, because observer sampling
practices were evaluated explicitly during two of the projects,
opportunities were afforded for industry to recognize the difficulties
that observers encounter when performing sampling duties aboard fishing
vessels. This has resulted in some suggestions for innovative solutions
to sampling problems and improved recognition of the limitations of the
observer-based catch monitoring system.
The success of cooperative studies depends on the ability of
scientists and industry personnel to work together at all levels,
including the senior staff who develop research concepts and provide
political and fiscal support, those involved in the detailed design and
planning, and scientists and industry personnel involved in data
collection, analysis, and reporting. This commitment may be seriously
tested when research results are not deemed favorable. The finding that
led to an increase in the standard density factors for estimating
pollock catch weight was unpopular with the industry, so questions
regarding the applicability of the study had to be resolved. As a result
of the catch composition sampling study, agency assumptions regarding
the appropriateness of basing haul and vessel-specific catch accounting
on sample data collected by observers have been challenged.
Collaborations between NMFS and industry may be particularly
attractive, because NMFS allows retention and sale of fish caught during
the EFP to fund the research that would otherwise be too costly to
conduct. For instance, the EFP research to investigate catch composition
sampling in the multispecies flatfish fishery provided a set aside of
flatfish and other species for the fishing associated with the
experiment. The company owning the vessel that participated in the
sampling experiment was able to support the vessel's fishing costs
and the substantial additional crew duties associated with the
experiment from the proceeds of the sale of fish caught during the
experiment. The expected charter cost of the vessel to conduct the
experiment without retention of the catch would have been approximately
$20,000 to $25,000 per day or close to $500,000 over the 3 weeks of the
experiment. This estimate is based on the vessel's expected revenue
per day if the vessel participated in one of the possible fisheries open
at the time of the experiment.
For certain types of research, the applicability of the results may
depend upon the extent to which research conditions resemble the actual
commercial fishing conditions. This resemblance is likely to be greater
when the vessel depends on the revenues from the fish it catches. For
instance, if the sampling research had been conducted under a research
charter, the skipper and crew would, perhaps, have had an incentive to
catch smaller quantities with less complex composition than would occur
in a normal commercial catch. This is because the extra work of sorting
and weighing catch by species would be less if the catch per haul was
smaller or less diverse.
We have described only three of the many successful cooperative
studies that have taken place in the waters off Alaska. We have also
demonstrated that either industry initiated or agency initiated
cooperation can be effective. In some cases, such as the long-term
charters for annual stock assessment surveys, agency initiated
contractual arrangements are the most suitable. In other cases, such as
the bycatch study discussed above, industry initiated research is more
appropriate. For other cases, either approach could be successful.
Regulatory provisions developed under the MSFCMA and other statutes,
together with agency administrative procedures, provide viable
mechanisms for supporting cooperative research. Of paramount importance,
however, is the commitment by agency and industry personnel to work
together and to recognize the importance of carrying out high quality,
scientifically defensible research, regardless of the results which
might be obtained.
Acknowledgments
The authors would like to thank all the people who made these
studies possible. This includes the captains and crews of the fishing
vessels Alliance, Legacy, American No. 1, and American Triumph, their
parent fishing companies, and the observers and agency staff who
participated in the field activities. This paper was originally
presented as CM 2000/W:007 at the 2000 Annual Science Conference of the
International Council for Exploration of the Sea which took place in
Bruges, Belgium.
(1) Ronholt, L. L., H. H. Shippen, and E. S. Brown. 1978. Demersal fish and shellfish resources of the Gulf of Alaska from Cape Spencer to
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(2) Mention of trade names or commercial firms does not imply
endorsement by the National Marine Fisheries Service, NOAA.
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William A. Karp, Craig S. Rose, Sarah K. Gaichas, Martin W. Dom,
and Gary D. Stauffer are with the Alaska Fisheries Science Center,
National Marine Fisheries Service, NOAA, 7600 Sand Point Way N.E.,
Seattle, WA 98115 [email:
[email protected]] John R. Gauvin is with The
Groundfish Forum, Inc., 4039 21st Avenue West, Suite 401, Seattle, WA
98199.