SUPPLEMENTARY INFORMATION

Transcription

1 Supplementary Table 1 Summary of treated fisheries and matched controls Region Northeast Southeast Northwest Program Name Mid-Atlantic Golden Tilefish IFQ Program Northeast General Category Atlantic Sea Scallop IFQ Program Northeast Multispecies Sectors Program Red Snapper IFQ Program Grouper- Tilefish IFQ Program 1 Pacific Coast Permit Stacking Program Pacific Groundfish Trawl Rationalization Program Commencement Date November, 2009 March, 2010 May, 2010 January, 2007 January, 2010 August, 2001 January, 2011 Species Grouping Comparison Region Golden tilefish (Lopholatilus chamaeleonticeps) Sea scallop (IFQ portion only) (Placopecten magellanicus) Atlantic cod (Gadus morhua) Pollock (Pollachius virens) Haddock (Melanogrammus aeglefinus) Acadian Redfish (Sebastes fasciatus) White hake (Urophycis tenuis) Witch flounder (Glyptocephalus cynoglossus) Winter flounder (Pseudopleuronectes americanus) Yellowtail flounder (Limanda ferruginea) American plaice (Hippoglossoides platessoides) Red snapper (Lutjanus campechanus) Snowy grouper (Epinephelus niveatus) Yellowedge grouper (Epinephelus flavolimbatus) Gag (Mycteroperca microlepis) Black grouper (Mycteroperca bonaci) Scamp (Mycteroperca phenax) Red grouper (Epinephelus morio) Blueline (grey) tilefish (Caulolatilus microps) Golden Tilefish (Lopholatilus chamaeleonticeps) (Anoplopoma fimbria) Pacific cod (Gadus macrocephalus) Lingcod (Ophiodon elongatus) Pacific hake (whiting) (Merluccius productus) (Anoplopoma fimbria) Pacific Ocean perch (Sebastes alutus) Widow (Sebastes entomelas) Golden tilefish Sea scallop Atlantic cod Pollock Haddock Acadian Redfish White hake Witch flounder Winter flounder Yellowtail flounder American plaice Red snapper Deep-water grouper Gag Other shallowwater grouper Red grouper South Atlantic Atlantic Mid-Atlantic South Atlantic South Atlantic South Atlantic South Atlantic Comparison Species/Product Golden tilefish (Lopholatilus chamaeleonticeps) Sea scallop (non-ifq portion of fleet) (Placopecten magellanicus) Atlantic cod (Gadus morhua) Pollock (Pollachius virens) Haddock (Melanogrammus aeglefinus) Acadian redfish (Sebastes fasciatus) White hake (Urophycis tenuis) Witch flounder (Glyptocephalus cynoglossus) Winter flounder (Pseudopleuronectes americanus) Summer flounder (Paralichthys dentatus) American plaice (Hippoglossoides platessoides) Vermilion snapper (Rhomboplites aurorubens) Deep-water grouper (same species) Gag (Mycteroperca microlepis) Other shallow-water grouper (same species) Red grouper (Epinephelus morio) Tilefish South Atlantic Tilefish (same species) Pacific cod Lingcod Pacific hake (whiting) Pacific Ocean perch Widow (Anoplopoma fimbria) Pacific cod (Gadus macrocephalus) Lingcod (Ophiodon elongatus) Pacific hake (whiting) (Merluccius productus) (Anoplopoma fimbria) Pacific Ocean perch (Sebastes alutus) Widow (Sebastes entomelas) 1

2 Alaska Alaska Halibut IFQ Program Alaska IFQ Program March, 1995 March, 1995 Bocaccio (Sebastes paucispinis) Canary (Sebastes pinniger) Chilipepper (Sebastes goodei) Splitnose (Sebastes diploproa) Yellowtail (Sebastes flavidus) Shortspine thornyhead (Sebastolobus alascanus) Darkblotched (Sebastes crameri) Yelloweye (Sebastes ruberrimus) Dover sole (Solea solea) English sole (Parophrys vetulus) Petrale sole (Eopsetta jordani) Arrowtooth flounder (Atheresthes stomias) Starry flounder (Platichthys stellatus) Pacific Halibut (Hippoglossus stenolepis) (Anoplopoma fimbria) Bocaccio Canary Chilipepper Splitnose Yellowtail Shortspine thornyhead Darkblotched Yelloweye Dover sole English sole Petrale sole Arrowtooth flounder Starry flounder Pacific halibut Pacific Pacific Bocaccio (Sebastes paucispinis) Canary (Sebastes pinniger) Yelloweye (Sebastes ruberrimus) Splitnose (Sebastes diploproa) Yellowtail (Sebastes flavidus) Shortspine thornyhead (Sebastolobus alascanus) Darkblotched (Sebastes crameri) Yelloweye (Sebastes ruberrimus) Dover sole (Solea solea) Dover sole (Solea solea) Petrale sole (Eopsetta jordani) Arrowtooth flounder (Atheresthes stomias) Starry flounder (Platichthys stellatus) Pacific halibut (Hippoglossus stenolepis) (Anoplopoma fimbria) Fisheries with insufficient data for differences-in-differences analysis not shown. In cases where a pilot program or partial implementation took place before the full catch share program went into effect, the implementation date used in our analysis (that of full implementation) is shown. Some very minor species belonging to the Trawl Rationalization Program were excluded from analysis. 2

3 Supplementary Table 2 Difference-in-differences treatment effects by individual fishery/fishery group Program Species/Group N Gini coef. (OLS) (b/se) Gini coef. (FL) (b/se) Months to 70% (OLS) (b/se) Months to 80% (OLS) (b/se) Alaska Halibut Pacific Halibut ** *** * * (0.0320) (0.0194) (0.2609) (0.3639) Alaska ** *** ** ** (0.0428) (0.0256) (0.4358) (0.3439) Atlantic Sea Scallop Sea Scallop *** *** ** *** (0.0263) (0.0136) (0.2645) (0.2785) Grouper-Tilefish Deep Water Grouper *** *** *** ** (0.0338) (0.0221) (0.3251) (0.4907) Grouper-Tilefish Gag * *** * * Grouper-Tilefish (0.0864) (0.0515) (0.6719) (0.7361) Other Shallow Water Grouper ** *** ** ** (0.0524) (0.0267) (0.4411) (0.5799) Grouper-Tilefish Red Grouper *** *** *** *** (0.0482) (0.0304) (0.4116) (0.4245) Grouper-Tilefish Tilefish ** *** ** ** (0.0928) (0.0465) (1.0006) (1.1042) Red Snapper Red Snapper * (0.0597) (0.0349) (0.6018) (0.6969) Mid-Atlantic Golden Tilefish Golden Tilefish ** *** ** ** (0.0540) (0.0353) (0.4419) (0.4768) Acadian Redfish ** (0.0465) (0.0257) (0.4105) (0.3940) Atlantic Cod *** (0.0324) (0.0178) (0.3003) (0.3922) American Plaice * (0.0746) (0.0432) (0.7319) (0.8327) Haddock * *** * * (0.0333) (0.0202) (0.3641) (0.3742) Pollock (0.0588) (0.0374) (0.5119) (0.3882) White Hake *** (0.0422) (0.0305) (0.3551) (0.3144) Winter Flounder *** * * (0.0350) (0.0222) (0.2231) (0.2522) Witch Flounder (0.0356) (0.0299) (0.4534) (0.5510) Yellowtail Flounder *** * * (0.0511) (0.0307) (0.5111) (0.5223) Arrowtooth Flounder * (0.0495) (0.0301) (0.5168) (0.6623) Bocaccio Rockfish (0.0490) (0.0256) (0.3482) (0.1329) Canary Rockfish (0.0694) (0.0441) (0.6514) (0.4721) Chilipepper Rockfish ** (0.0991) (0.0582) (0.9484) (0.9178) 3

4 Program Species/Group N Gini coef. (OLS) (b/se) Gini coef. (FL) (b/se) Months to 70% (OLS) (b/se) Months to 80% (OLS) (b/se) Darkblotched Rockfish * (0.0668) (0.0401) (0.6024) (0.6529) Dover Sole (0.0418) (0.0332) (0.3621) (0.4310) English Sole (0.0971) (0.0611) (0.8965) (0.9512) Lingcod (0.0798) (0.0468) (0.7828) (0.9010) Pacific Cod *** (0.0492) (0.0299) (0.4651) (0.3749) Pacific Ocean Perch Rockfish *** (0.0955) (0.0490) (0.9852) (1.1139) Pacific Whiting Hake (0.0827) (0.0559) (0.8235) (0.9795) Petrale Sole * *** * * (0.0376) (0.0250) (0.419) (0.3829) (0.0299) (0.0177) (0.2103) (0.2587) Shortspine Thornyhead (0.0349) (0.0262) (0.3274) (0.5380) Splitnose Rockfish (0.1049) (0.0635) (1.0829) (0.9954) Starry Flounder (0.1709) (0.1032) (1.4732) (1.6771) Widow Rockfish *** (0.0755) (0.0423) (0.7864) (0.9296) Yelloweye Rockfish (0.1113) (0.0743) (0.9272) (0.9952) Yellowtail Rockfish * *** * * (0.0227) (0.0137) (0.2337) (0.2962) Pacific * *** * * (0.0838) (0.0514) (0.6994) (0.7038) + p<0.10, * p<0.05, ** p<0.01, *** p< Three-year time windows before and after implementation used for all models. Where policies changed in January, only 6 calendar years of data were needed to have 3 full years before and after policy implementation for each treatment or control group (resulting in 12 observations total). Where policies changed in the middle of the year, 3 full years before and after policy implementation were included, plus the year of treatment, resulting in 7 observations per treatment or control group (14 observations total). Atlantic sea scallop has 12 observations because only 1 full year of data was available for the treatment group prior to the policy change. 4

5 Supplementary Table 3 Summary statistics Program Species/Group Alaska Halibut Pacific Halibut Yearly Landings (thousands of pounds) (mean/sd) Yearly Value (millions of 2015 dollars) (mean/sd) Average Price/lb (2015 dollars) (mean/sd) Pre-CS Post-CS Pre-CS Post-CS Pre-CS Post-CS 40,972 37, $2.17 $2.78 (4,900) (9,060) (19.841) (25.718) ($0.76) ($0.65) Alaska Atlantic Sea Scallop Grouper- Tilefish Grouper- Tilefish Grouper- Tilefish Grouper- Tilefish Grouper- Tilefish Red Snapper Mid-Atlantic Golden Tilefish Sea Scallop Deep Water Grouper Gag Other Shallow Water Grouper Red Grouper Tilefish Red Snapper Golden Tilefish Acadian Redfish Atlantic Cod American Plaice Haddock Pollock White Hake Winter Flounder Witch Flounder Yellowtail Flounder Arrowtooth Flounder Bocaccio Rockfish Canary Rockfish 33,880 6, $2.07 $3.06 (2,020) (4,561) (12.228) (20.480) ($0.35) ($0.51) 3,160 2, $6.90 $10.71 (n/a) (440) (n/a) (6.242) (n/a) ($1.17) 1, $3.35 $3.61 (34) (156) (0.317) (0.674) ($0.17) ($0.17) 1, $3.67 $4.10 (345) (131) (1.261) (0.565) ($0.02) ($0.12) $3.56 $3.83 (87) (81) (0.304) (0.329) ($0.04) ($0.08) 4,791 5, $2.73 $2.87 (726) (1,194) (1.733) (3.526) ($0.14) ($0.12) $1.53 $2.18 (32) (129) (0.042) (0.315) ($0.12) ($0.16) 4,474 2, $3.27 $4.01 (317) (472) (0.862) (1.819) ($0.12) ($0.11) 1,682 1, $2.84 $3.05 (179) (75) (0.308) (0.181) ($0.35) ($0.18) 2,489 6, $0.59 $0.62 (720) (2,555) (0.296) (1.741) ($0.06) ($0.06) 18,542 12, $1.66 $1.94 (1,476) (6,124) (3.039) (10.427) ($0.23) ($0.21) 2,564 3, $1.68 $1.57 (459) (150) (0.258) (0.293) ($0.27) ($0.07) 11,608 10, $1.36 $1.29 (3,187) (8,307) (2.127) (8.163) ($0.31) ($0.32) (18,957) 13, $0.58 $0.91 (2,770) (2,404) (1.353) (1.450) ($0.07) ($0.09) 3,284 5, $1.23 $1.14 (406) (1,123) (0.342) (1.161) ($0.15) ($0.15) 4,831 4, $2.11 $1.89 (220) (1,050) (1.812) (1.427) ($0.28) ($0.22) 2,203 1, $2.51 $2.23 (123) (339) (1.000) (0.247) ($0.32) ($0.27) 3,687 3, $1.77 $1.41 (166) (666) (1.551) (0.572) ($0.34) ($0.14) 7,013 4, $0.11 $0.12 (1,259) (309) (0.137) (0.071) ($0.00) ($0.01) $0.68 $0.75 (2) (8) (0.001) (0.007) ($0.04) ($0.06) $0.56 $0.55 (4) (6) (0.002) (0.003) ($0.04) ($0.02) 5

6 Program Pacific Species/Group Chilipepper Rockfish Darkblotched Rockfish Dover Sole English Sole Lingcod Pacific Cod Pacific Ocean Perch Rockfish Pacific Whiting Hake Petrale Sole Shortspine Thornyhead Splitnose Rockfish Starry Flounder Widow Rockfish Yelloweye Rockfish Yellowtail Rockfish Yearly Landings (thousands of pounds) (mean/sd) Yearly Value (millions of 2015 dollars) (mean/sd) Average Price/lb (2015 dollars) (mean/sd) Pre-CS Post-CS Pre-CS Post-CS Pre-CS Post-CS $0.69 $0.68 (263) (96) (0.150) (0.054) ($0.11) ($0.02) $0.54 $0.51 (68) (36) (0.033) (0.016) ($0.02) ($0.01) 24,054 16, $0.38 $0.45 (1,468) (922) (1.357) (0.564) ($0.04) ($0.01) $0.36 $0.35 (175) (195) (0.066) (0.063) ($0.01) ($0.01) $0.82 $0.77 (57) (117) (0.035) (0.080) ($0.05) ($0.02) 526 1, $0.53 $0.57 (359) (292) (0.161) (0.192) ($0.13) ($0.03) $0.53 $0.52 (6) (5) (0.003) (0.002) ($0.00) ($0.01) 116, , $0.10 $0.13 (20,301) (43,917) (4.894) (3.595) ($0.03) ($0.02) 3,510 3, $1.10 $1.39 (1,593) (1,565) (1.649) (1.723) ($0.11) ($0.13) 6,202 3, $2.05 $2.08 (569) (351) (0.988) (2.654) ($0.07) ($0.55) 2,619 1, $0.74 $0.82 (257) (153) (0.238) (0.198) ($0.07) ($0.06) $0.41 $0.31 (33) (12) (0.017) (0.003) ($0.03) ($0.02) $0.52 $0.66 (65) (9) (0.031) (0.005) ($0.10) ($0.08) $0.47 $0.47 (51) (327) (0.021) (0.152) ($0.03) ($0.01) $0.56 $0.56 (0.1) (0.1) (0.000) (0.000) ($0.00) ($0.05) 1,133 2, $0.55 $0.53 (519) (427) (0.283) (0.262) ($0.02) ($0.02) 7,150 6, $2.08 $2.16 (1,656) (1,062) (4.780) (2.198) ($0.26) ($0.14) Atlantic sea scallop only has one complete year of data in the pre-catch share period (2009); thus there are no standard deviations associated with the pre-catch share averages. 6

7 Supplementary Table 4 Variance and tests for equality of variance of Gini coefficients Variance of Pre- Period Gini Coefficients Tests for Equality of Variance (of Pre-Period Gini Coefficients): p-values Program Species/Species Group Control Treatment Traditional F-test Levene's F-test (mean) Brown & Forsythe (median) Brown & Forsythe (trimmed mean) Alaska Halibut Pacific Halibut Alaska Atlantic Sea Scallop Sea Scallop Grouper-Tilefish Deep Water Grouper Grouper-Tilefish Gag Grouper-Tilefish Other Shallow Water Grouper Grouper-Tilefish Red Grouper Grouper-Tilefish Tilefish Red Snapper Red Snapper Mid-Atlantic Golden Tilefish Golden Tilefish Acadian Redfish Atlantic Cod Atlantic Plaice Flounder Haddock Pollock White Hake Winter Flounder Witch Flounder Yellowtail Flounder Arrowtooth Flounder Bocaccio Rockfish Canary Rockfish Chilipepper Rockfish Darkblotched Rockfish Dover Sole English Sole Lingcod Pacific Cod Pacific Ocean Perch Rockfish Pacific Whiting Hake Petrale Sole Shortspine Thornyhead Splitnose Rockfish Starry Flounder Widow Rockfish Yelloweye Rockfish Yellowtail Rockfish Pacific

8 Supplementary Table 5 Variance and tests for equality of variance of pre-period months to 70 percent Variance of Pre- Period Months-to-70% Tests for Equality of Variance (of Pre-Period Months-to-70%): p-values Program Species/Species Group Control Treatment Traditional F-test Levene's F-test (mean) Brown & Forsythe (median) Brown & Forsythe (trimmed mean) Alaska Halibut Pacific Halibut Alaska Atlantic Sea Scallop Sea Scallop Grouper-Tilefish Deep Water Grouper Grouper-Tilefish Gag Grouper-Tilefish Other Shallow Water Grouper Grouper-Tilefish Red Grouper Grouper-Tilefish Tilefish Red Snapper Red Snapper Mid-Atlantic Golden Tilefish Golden Tilefish Acadian Redfish Atlantic Cod Atlantic Plaice Flounder Haddock Pollock White Hake Winter Flounder Witch Flounder Yellowtail Flounder Arrowtooth Flounder Bocaccio Rockfish Canary Rockfish Chilipepper Rockfish Darkblotched Rockfish Dover Sole English Sole Lingcod Pacific Cod Pacific Ocean Perch Rockfish Pacific Whiting Hake Petrale Sole Shortspine Thornyhead Splitnose Rockfish Starry Flounder Widow Rockfish Yelloweye Rockfish Yellowtail Rockfish Pacific

9 Supplementary Table 6 Variance and tests for equality of variance of pre-period months to 80 percent Variance of Pre- Period Months-to-80% Tests for Equality of Variance (of Pre-Period Months-to-80%): p-values Program Species/Species Group Control Treatment Traditional F-test Levene's F-test (mean) Brown & Forsythe (median) Brown & Forsythe (trimmed mean) Alaska Halibut Pacific Halibut Alaska Atlantic Sea Scallop Sea Scallop Grouper-Tilefish Deep Water Grouper Grouper-Tilefish Gag Grouper-Tilefish Other Shallow Water Grouper Grouper-Tilefish Red Grouper Grouper-Tilefish Tilefish Red Snapper Red Snapper Mid-Atlantic Golden Tilefish Golden Tilefish Acadian Redfish Atlantic Cod Atlantic Plaice Flounder Haddock Pollock White Hake Winter Flounder Witch Flounder Yellowtail Flounder Arrowtooth Flounder Bocaccio Rockfish Canary Rockfish Chilipepper Rockfish Darkblotched Rockfish Dover Sole English Sole Lingcod Pacific Cod Pacific Ocean Perch Rockfish Pacific Whiting Hake Petrale Sole Shortspine Thornyhead Splitnose Rockfish Starry Flounder Widow Rockfish Yelloweye Rockfish Yellowtail Rockfish Pacific

10 Supplementary Note 1: Descriptions of fishery management systems To illustrate the rationale for matches, we provide brief descriptions of the programs managing our treatment and control fisheries (see Supplementary Table 1 for the full list of treatmentcontrol pairs with scientific species names). Northeast and Mid-Atlantic. The Northeast General Category Atlantic Sea Scallop IFQ Program, overseen by the New England Fisheries Management Council (NEFMC), is compared to the larger non-catch share sea scallop fishery managed by the same council. In 1994 a limited entry permit program was introduced that utilized days-at-sea (DAS) limits, harvest limits, and rotational area closures. Open access was maintained for smaller boats, a group described as the General Category Scallop Fishery. Growth in the share of landings in this category prompted the implementation of the sea scallop IFQ Program in This IFQ program applied to the General Category (with some minor exceptions), which was also subjected to a landings limit of 5.5 percent of the total scallop catch limit 1. Our treatmentcontrol pairing thus compares two different management regimes within the same fishery: scallop vessels that received catch share treatment and scallop vessels that did not. The Northeast Multispecies Sector Program, also overseen by the NEFMC, was implemented in It has nine species under catch share management, all of which are included in our analysis (four additional species are managed by this program but without catch shares). Prior to the Sector Program these fisheries were managed with increasingly restrictive DAS restrictions and area closures 2. An allocation of quota (and an associated opt-out privilege from some effort controls) was given in 2004 to a cooperative of voluntarily participating vessels for one stock of cod (Georges Bank). This was the initial version of the Sector Program, which was then extended to other species and stocks in 2010, largely replacing DAS restrictions 1,3. By 2011, the Sector Program covered 99 percent of the total allowable catch (TAC) allocated to commercial fishermen for these species in the Council s region, and represented approximately 90 percent of the total harvest. We use fisheries of the same species in Atlantic Canada as reverse controls for Atlantic cod, pollock, haddock, Acadian redfish, white hake, witch flounder, winter flounder, and American plaice. Our comparison reverse controls are managed by Fisheries and Oceans Canada (DFO) under a TAC set separately for each management unit which is then shared across the fleets of the adjacent Maritime Provinces and Newfoundland and Labrador. Management units are defined by fleet, which are functions of boat size, distance from shore, and province, for each species. All management units utilize 10

11 limited entry permits, size limits, gear restrictions, and season closures. In addition, catch shares were introduced in the 1990s (well before catch share introduction in our treatment fisheries) for species in certain management units, at either the individual or cooperative level 4,5. Although not all management units received catch shares, treatment status in the reverse controls did not change during the relevant comparison time period ( ). We use a U.S. Mid-Atlantic control fishery, summer flounder (which serves a similar market), for yellowtail flounder due to a lack of data available from the Canadian yellowtail flounder fishery. The fishery is managed by the Mid-Atlantic Fishery Management Council (MAFMC), using limited entry permits, gear and size restrictions, and season closures. Quota is suballocated between states within the Mid-Atlantic region 6. The Mid-Atlantic Golden Tilefish IFQ program is also managed by the MAFMC. Prior to catch share introduction in 2009, the golden tilefish fishery was managed with a limited entry, tiered permitting system that allocated a proportion of the overall quota to each tier. Inclusion of fishermen within a tier was based on prior level of fishery participation. Implementation of catch share management was initially hindered by Congress s moratorium on catch shares, which was in effect from 1996 to However, fishermen in the full-time tier one category arranged sub-allocations of their tier s quota among themselves voluntarily (i.e., an informal catch share), allowing members to optimize harvest times with market conditions. Fishermen in other tiers were unable to come to a self-organized sub-allocation, leading to early closures of those parts of the fishery in some years. The cooperation of the tier-one fishermen, along with the failures of other tiers to cooperate, prompted the MAFMC to formalize and expand the catch share system in We compare Mid-Atlantic golden tilefish to the same species caught in the South Atlantic where it is managed by the South Atlantic Fishery Management Council (SAFMC) using trip limits and season closures rather than catch shares. There are separate seasons for longline and hook and line categories 7.. The Red Snapper ITQ Program was implemented by the Gulf of Mexico Fishery Management Council (GMFMC) in Previously the commercial harvest was regulated with limited entry permits, trip limits, and season closures, and faced overfishing, derby-style fishing conditions, and market gluts 8. Commercial quota was reduced by one third at the time of implementation. We match this fishery to the vermilion snapper fishery (note that a comparison to the non-catch share red snapper fishery in the South Atlantic is problematic due to a moratorium on red snapper landings in that region during the study period). The vermilion snapper fishery is managed under the same GMFMC 11

12 reef fish management plan as red snapper, but with size limits and season closures rather than catch shares 8,9. The GMFMC s Grouper-Tilefish Program manages 13 species of shallow water groupers, deep water groupers, gag, red grouper, and tilefish species 10. The program, which commenced in 2010, allocates individual quotas for fish categories rather than species, namely gag, red grouper, other shallow-water groupers, deep-water groupers, and tilefishes. Prior to program implementation, trip limits and limited entry permits failed to prevent quota overages and early season closures 1. We match the program s species categories to categories comprising the same species caught in the South Atlantic region, where they are managed by the SAMFC as part of the Snapper Grouper Management Complex. During the relevant time period, management in the control fisheries was based on limited entry permits, trip limits, area and season closures rather than catch shares 7. Pacific Northwest. The Pacific Coast Stacking Program, operated by the Pacific Fishery Management Council (PFMC), was implemented sequentially. Individual quota was attached to the pre-existing limited entry permit system in 1994 but did not alleviate early season closures due to quota allocations that were much higher than the TAC (i.e., incentives to race were maintained). Adjustments alleviated season constraints partially in 2001 and fully in Derby conditions were severe in the years preceding full implementation 1. The program covers only the fixed gear sablefish fishery (approximately one third of the total). are also harvested in a large trawl fishery (covered by a different catch share program, described below) as well as smaller open access, trip limited, and tribal fisheries. Permits are stacked, in the sense that one vessel may hold multiple permits representing a unit of quota. We use sablefish caught under British Columbia s Integrated Groundfish Program as a reversecomparison, made possible by much earlier (1990) catch-share implementation in this region (note that an Alaskan comparison is infeasible because monthly Alaska data during the comparison period is unavailable) 11. The PFMC s Trawl Rationalization Program was introduced in It consists of an ITQ program for a shore-based fleet and a cooperative program for at-sea mothership and catcher/processor fleets. The at-sea fleets focus on whiting, while the shorebased fleet is split between whiting and other groundfish species (with separate management provisions) 2. Prior to the program, the shore-based non-whiting fleet was managed with twomonth cumulative trip limits, season closures and effort restrictions. The trip limits reduced 12

13 racing for target species but did not provide individual accountability for bycatch species (necessitating season closures and/or other restrictions). The mothership and shore-based whiting fleets were managed with season closures, leading to racing. The catcher/processor whiting fleet had already voluntarily formed cooperatives and was thus largely unaffected by the program s implementation 12. In total, the program allocates quota for 25 species categories, of which we analyze 19 (those that represent individual species, are not affected by data limitations, and are not managed only as bycatch). The same species are harvested in our reverse-comparison, British Columbia s Integrated Groundfish Program. This program is an amalgamation of earlier individual vessel quota (IVQ) programs and other fisheries, including trawl-caught groundfish (an IVQ program implemented in 1997), halibut (1991) and sablefish (1990). Full implementation of catch shares for all commercial fisheries (including hook-andline, lingcod, and dogfish) occurred in British Columbia in 2006, well before implementation of the Groundfish Trawl Rationalization Program (2011) 11. A number of species in the Groundfish Trawl Rationalization Program (Pacific Ocean perch, canary, widow, darkblotched, cowcod, bocaccio, and yelloweye es) had relatively low quotas during the analysis period due to overfishing concerns. We estimate average treatment effects with and without these species as a robustness check (Extended Data Tables 2-3, 7-8). Alaska. The Alaska Halibut and Fixed Gear IFQ program, implemented in 1995, operates in the Bering Sea Aleutian Islands (BSAI) and the Gulf of Alaska with multiple area categories. Each species/areas category has its own TAC, set by the International Pacific Halibut Commission (IPHC) for halibut and North Pacific Fishery Management Council (NPFMC) for sablefish. In the years preceding catch share implementation, management relied on a combination of gear limits, area closures, and season closures. Season length shrunk to just a few days in the most important categories of the halibut fishery 13. We use as controls halibut and sablefish from the Pacific Northwest, neither of which used catch shares during the comparison time period (halibut still does not). PFMC sablefish TACs are allocated across trawl and fixed gear limited entry, tribal, and fixed gear open access fisheries. During the comparison time period, season closures were used to control the larger portion of harvests in the limited entry fisheries, with a trip limit used to manage a designated portion 14,15. Halibut are managed jointly by the PFMC and IPHC. During the comparison time period the Pacific Northwest halibut fisheries comprised commercial long line, tribal, and recreational fisheries. A bycatch quota was provided to the groundfish trawl fishery. Management in all sectors used a combination of limited entry permits, area closures, size limits, and season closures

14 1 Brinson, A. A. & Thunberg, E. M. The Economic Performance of U.S. Catch Share Programs 160 (National Oceanic and Atmospheric Administration, U.S. Department of Commerce, 2013). 2 Holland, D. et al. U.S. Catch Share Markets: A Review of Characteristics and Data Availability. (National Oceanic and Atmospheric Administration, U.S. Department of Commerce, 2014). 3 Holland, D. S. & Wiersma, J. Free form property rights for fisheries: The decentralized design of rights-based management through groundfish "sectors" in New England. Marine Policy 34, , doi: /j.marpol (2010). 4 OECD. Country Note on Fishery Management Systems: Canada. (Organization for Economic Cooperation and Development, Paris, 2004). 5 Melnychuk, M. C. et al. Can catch share fisheries better track management targets? Fish and Fisheries 13, , doi: /j x (2012). 6 MAFMC. Standardized Bycatch Reporting Methodology: An Omnibus Amendment to the Fishery Management Plans of the Mid-Atlantic and New England Regional Fishery Management Councils. (Mid-Atlantic Fishery Management Council, Dover, DE, 2015). 7 SAFMC. Snapper Grouper Fishery Management Plan Amendment 18B (Apendix F: History of Management of the South Atlantic Snapper Grouper Fishery). (South Atlantic Fishery Management Council, Tampa, FL, 2013). 8 GMFMC. Final Amendment 26 to the Reef Fishery Management Plan to Establish a Red Snapper Individual Fishing Quota Program. ( Fishery Management Council, Tampa, FL, 2006). 9 GMFMC. Regulatory Amendment to Address Vermilion Snapper Regulations under the Fishery Management Plan For the Reef Fish Fishery of the Including Environmental Assessment, Regulatory Impact Review, and Regulatory Flexibility Act Analysis. ( Fisheries Management Council, Tampa, FL, 2007). 10 NMFS Grouper-Tilefish Individual Fishing Quota Annual Report. (National Marine Fisheries Service, St. Petersburg, FL, 2013). 11 Strauss, K. Catch Shares in Action: British Columbia Integrated Groundfish Program. (Environmental Defense Fund, Washington, DC, 2013). 12 PFMC. Rationalization of the Pacific Coast Groundfish Limited Entry Trawl Fishery: Final Environmental Impact Statement. (Pacific Fishery Management Council, Portland, OR, 2010). 14

15 13 National Research Council. Sharing the fish: Toward a national policy on individual fishing quotas. (National Academy Press, 1999). 14 PFMC. Amendment 11 to the Pacific Coast Groundfish Fishery Management Plan (Appendix B). (Pacific Fisheries Management Council, Portland, OR, 1998). 15 PFMC. Amendment 9 to the Fishery Management Plan for Pacific Coast Groundfish (Limited Entry Fixed Gear Endorsement). (Pacific Fisheries Management Council, Portland, OR, 1996). 16 Williams, G. H. & Blood, C. L. Active and Passive Management of the Recreational Fishery for Pacific Halibut off the U.S. West Coast. North American Journal of Fisheries Management 23, , doi: /m01-233am (2003). 15