Committee on Fisheries

Transcription

1 European Parliament Committee on Fisheries MISSION REPORT following the 12 th Regular Meeting of the Western and Central Pacific Fisheries Commission (WCPFC) in Kuta, Bali, Indonesia, of 5-8 December 2015 Committee on Fisheries Members of the mission: Richard Corbett (S&D Leader of the mission) CR\ DOC PE v01-00 United in diversity

2 THE WCPFC 12th REGULAR MEETING AT A GLANCE The Western and Central Pacific Fisheries Commission (WCPFC) held its 12th regular meeting from 3 to 8 December 2015 in Bali, Indonesia, attended by approximately 600 people from its 26 member states. Richard Corbett, Member of the Committee on Fisheries, took part in the meeting on behalf of the European Parliament as an observer in the official EU delegation, which was led by Angela Martini, an International Relations Officer at the European Commission s DG Maritime Affairs and Fisheries (MARE). Discussions focused on management measures for tropical tuna species, bluefin tuna, harvest strategies, observers safety, special requirements of developing states, fish aggregation devices (FADs), bycatch mitigation (sharks, seabirds, turtles, whale sharks and cetaceans), and sharks. As a whole, the outcome of the meeting was poor and only limited progress was made on certain issues. Conflicting positions between coastal states purse seine fisheries and the longline fisheries of distant-water fishing nations hindered progress on several issues. Japan in particular, in defending the interests of its longliner fleet, hampered progress on many issues. The poor results can also be explained by the fact that the Conservation and Management Measure for bigeye, yellowfin and skipjack tuna (CMM ) ends in December 2017, and real progress is therefore expected at the next (13th) meeting of the WCPFC. The management measures on tropical tuna were not amended to address overfishing of bigeye tuna. However, a harvest strategy work plan for all tuna species but bluefin (managed by the Northern Committee) was adopted, as were interim target reference points for skipjack tuna. There was no real move to improve the management of bluefin tuna despite the poor situation of the stock. The work plan developed by the Northern Committee was very weak. Several improvements were made to the Compliance and Monitoring Scheme for combating illegal, unreported and unregulated (IUU) fishing. The FFA (Pacific Islands Forum Fisheries Agency) proposal on port inspections was not adopted because of Japan s opposition. No progress was made on improving the application of the current measure on transhipment at sea for longliners. The European Commission, leading the EU representation, contributed constructively to all the issues raised in the meeting, but its proposals focused on aspects related to shark catches: measures against shark finning and guidance for management plans for sharks targeted by longline fisheries. For the second year in a row, as was the case at the International Commission for the Conservation of Atlantic Tunas (ICCAT), the WCPFC declined to adopt measures on shark finning similar to those in force in the EU (landing of sharks with their fins naturally attached). The strongest opposition came from Japan, South Korea and New Zealand. Nevertheless, progress was made regarding guidance for management plans for sharks, which are to be developed following a clearer, harmonised and science-based approach. The FAD Working Group adopted draft key elements for marking, identification and PE v /11 CR\ DOC

3 use of electronic signatures, as well as for data collection. A research plan was also adopted. CR\ DOC 3/11 PE v01-00

4 OUTCOME OF THE 12TH REGULAR MEETING OF THE WCPFC Tropical Tuna The bigeye tuna (BET) stock has deteriorated and is the only tropical tuna species that is overfished. In this light, the multiannual Conservation and Management Measure for tropical tuna adopted in 2014 needs to be revised, in particular to reduce fishing efforts. The Parties to the Nauru Agreement (PNA) presented a proposal for tropical tuna. This proposal concerned compliance, and consisted of four issues for longliners and another four for purse seiners. The intention was twofold: to penalise longline fleets and to bring forward the FAD fishing ban in the high seas to 2016 (instead of 2017). An isolated reduction in the number of fishing days in the high seas (HS) and a ban on fishing with FADs in the HS would disproportionally target the EU fleet. As very little fishing occurs in the HS, these measures are not justified from a conservation point of view. The PNA proposal was presented as a whole, without any possibility of separating the issues for longliners from those for purse seiners. China and Japan killed the proposal. The Chair then proposed a revision of the aforementioned conservation and management measure in order to achieve a balanced approach between different interests. This compromise consists, for purse seiner fisheries, of a consolidation of the number of fish aggregation devices (FADs) in both the exclusive economic zones (EEZs) and the high seas. On the other hand, for the longliners, a set of measures such as a ban on transhipment at sea or an increase in the observers coverage was proposed. This proposal could have had positive effects on the bigeye tuna stock, which is currently overfished. The Asian bloc, in particular Japan, killed the proposal, and the opportunity to address overfishing of bigeye tuna was lost. The PNA presented a proposal setting a target reference point (TRP) for skipjack tuna (SKJ), although this is the healthiest stock in the Pacific. Japan has been very active in trying to introduce recommendations aiming at reducing skipjack catches in the WCPFC area. Skipjack occupies a very important place in the culture of coastal communities in Japan and coastal fisheries have recently faced reductions in their catch per unit effort (CPUE). In the absence of any clear scientific evidence, Japan described a range contraction of SKJ that could affect coastal fisheries in the country. Throughout the meeting, Japan emphasised the impact of purse seiners on SKJ, BET, sharks, etc. It advocated reducing purse-seiner effort and SKJ catch and fought back against any attempts to reduce the activity of its longliners. Subsequently, Japan (and other supporting Parties) introduced the idea that the pressure on the stock in the intertropical zone results in a reduction in catches in their coastal fisheries (range contraction of the species). The Scientific Committee declared, however, that it was not in a position to assess this Japanese argument. PE v /11 CR\ DOC

5 The WCPFC adopted an interim TRP for skipjack tuna of 50 % of the estimated recent average spawning biomass. It is worth noting that during the 11th WCPFC regular meeting, Japan killed a PNA proposal which intended to introduce a TRP of 50 % of spawning biomass, insisting that this be increased to 60 %. The measure finally adopted was the result of merging proposals by FFA members and Japan. In any case, the skipjack TRP could pave the way for more robust management tools such as harvest control rules. China and other Asian countries killed the FFA proposal on the South Pacific albacore (SPA). The FFA is mainly interested in promoting the bioeconomic TRP for SPA. As in the case of skipjack, this would have been a fundamental step forward for the WCPFC. The results of the new stock assessment recommend large catch reductions in order to keep the stock at its current levels. However, China challenged the outcome of the SPA assessment very strongly on scientific grounds. Nevertheless, the WCPFC agreed on certain additional data provision requirements, which will go some way towards addressing the difficulties experienced in the past by the compliance committee in assessing implementation of the current management measure for albacore owing to a lack of information. Pacific Bluefin Tuna Northern bluefin tuna is the species suffering most from fishing pressure at present, since it faces overfishing and is currently at its lowest historical level. At the 11th WCPFC regular meeting, a measure aiming to reduce catches of juveniles and rebuild the stocks to the historical median level within 10 years, with a 60 % probability, was adopted. More ambitious management measures are needed, similar to those adopted for other bluefin tuna populations, for example by ICCAT. In fact, the WCPFC members broadly acknowledged the dire state of the Pacific bluefin tuna stock. The Northern Committee was supposed to develop and recommend a work plan for northern stocks, including Pacific bluefin, at this meeting. However, the work plan developed was very weak. Despite the depletion of the stock of Pacific bluefin tuna, the only progress made was the addition of a new paragraph in the work plan as follows: An emergency rule shall be developed in 2016 which stipulates specific rules all CCMs shall comply with when drastic drops of recruitment are detected. Harvest Strategies At the 11th WCPFC regular meeting, the WCPFC committed to developing and implementing a six-part harvest strategy approach for each of the key tuna fisheries CR\ DOC 5/11 PE v01-00

6 or stocks, and an Australian proposal on behalf of the FFA on albacore was adopted as a test case. At this most recent meeting, the WCPFC adopted a Harvest Strategy work plan ( ) for skipjack, bigeye, yellowfin and South Pacific albacore. This work plan could drive the development of target reference points for other species, and the evolution of harvest strategies from there. This could provide clear guidance to all stakeholders on directions for management arrangements in the Pacific and the introduction of a new management system. Nevertheless, the WCPFC agreed that there will not be a Management Objectives Workshop/Harvest Strategy Workshop in 2016, and the harvest strategy-related issues will instead be included on the WCPFC13 agenda in Compliance and fight against IUU Long discussions took place on the revision of the current Compliance and Monitoring Scheme measure. This is the process that the WCPFC uses to assess the performance of member countries in implementing management measures. Several improvements were introduced to strengthen and clarify the current system. This measure will only be effective for two years and subsequently reviewed. The ongoing development of the scheme is of critical importance to ensure that the implementation of WCPFC measures is robust and transparent. The question of disproportionate burdens was an underlying factor in the majority of the modifications adopted. The FFA members, via Tonga, tabled a draft Port State MCS measure, which was also defeated. This proposal would substantially strengthen port controls in the region, avoiding some of the issues that FFA members and other CCMs have with the FAO Port States Measure Agreement. It could be one of the most effective tools in the fight against IUU. Japan has killed this FFA proposal on port inspections for six years in a row. Several delegations advocate a need to strengthen the current measure on transhipment at sea for longliners to avoid possible abuse, and even to introduce a total ban. Nevertheless, no progress was made. Vanuatu, on behalf of the FFA, proposed to ban transhipment in the four high seas pockets and in a semi-enclosed area of the high seas between Kiribati, Tokelau and Tuvalu. This was to address a serious IUU risk of vessels fishing where they think there is no scrutiny and then transhipping that catch with limited monitoring and no particular oversight from flag States. This proposal was killed by the Asian bloc. No new vessels were added to the IUU list. The French (Wallis and Futuna) flagged vessel and four Philippines vessels which were in the provisional IUU list were all delisted. PE v /11 CR\ DOC

7 Sharks The European Union presented proposals focused on aspects related to shark catches: measures against shark finning and guidance for management plans for sharks targeted by longline fisheries. For the second year in a row, as was the case at ICCAT, the WCPFC declined to adopt measures on shark finning similar to those in force in the EU (landing of sharks with their fins naturally attached). The strongest opposition came from Japan, South Korea and New Zealand. Even the USA proposed substantial cuts in the EU proposal. More substantial cuts were proposed by Japan with the support of China. In the end, the EU proposal was rejected. Fiji supported a shark research plan. Nevertheless, progress was made regarding guidance for management plans for sharks, which are to be developed following a clearer, harmonised and sciencebased approach. The EU proposal on sharks was shaped as a Mandate for the definition of guidance for management plans for sharks targeted by longline fisheries. Bycatch mitigation (sharks, seabirds, turtles, whale sharks, cetaceans) A positive outcome was achieved only for the protection of seabirds. The amendment proposed by Japan was intended to weaken the proposal. This amendment was modified by the USA to a revision within three years. The WCPFC endorsed the Guidelines for Safe Release of Encircled Animals including whale sharks. Strategic Plan The WCPFC approved the review of the WCPFC planning framework and the development of a new Strategic Plan and a new Corporate Plan. Japan expressed a negative view of the document. Observers safety The WCPFC adopted the two new minimum standards proposed on Observer safety at sea and Emergency Action Plan, which are part of the WCPFC Minimum Standards of the Regional Observer Programme, with an implementation date of no later than 1 January The WCPFC agreed to consider ways of strengthening the two proposals CR\ DOC 7/11 PE v01-00

8 recommended by the Working Group on the Regional Observer Programme (ROP) related to the pre-notification process from observer providers and additional reporting requirements for carrier vessels operating in the WCPFC area, in order to complement and enhance efforts to provide better support to observers who are victims of pressure, threats or attacks. It also agreed to support the strengthening of the reporting mechanisms within the WCPFC and among CCMs regarding instances of interference, intimidation, threats, assault or disappearance of observers. FAD Working Group The objective of the FAD Working Group meeting was to develop recommendations on a research plan on FADs, on marking and monitoring of FADs and on data standards. The Working Group adopted draft key elements for marking, identification and use of electronic signatures, as well as for data collection. A research plan was also adopted. The WCPFC agreed that a consultancy procedure should be undertaken early in 2016 to produce a report on options and considerations for the marking and identification of FADs to be deployed. The consultants should also provide advice on the feasibility of options for physical marking of the buoys, physical marking of the buoys and the FAD attachments, and electronic identification, along with the costs and benefits of each option. The draft research plan should incorporate some consideration of costs and benefits of various research and data collection activities in order to assist with prioritising the work. Consideration should also be given within the plan to addressing both target and non-target species. The WCPFC agreed that vessel operators should provide data on FADs covering the following two major areas: a) FAD design and construction of FADs to be deployed or encountered (materials, electronics, size, etc.); b) FAD activity (deploying, retrieving, setting, visiting, loss, etc.). The Working Group will continue its work by electronic means in 2016 and will hold another meeting next year, most likely in conjunction with the next Annual Meeting. Other issues The EU proposal to modify and strengthen submission of scientific data will be submitted to the Scientific Committee for advice. The proposal on access agreement PE v /11 CR\ DOC

9 was strongly opposed. CR\ DOC 9/11 PE v01-00

10 GLOSSARY ALC Automatic Location Communicator BET Bigeye tuna BFT Bluefin tuna CCAMLR Commission for the Conservation of Antarctic Marine Living Resources CCMs Members, Cooperating non-members and Participating Territories CCSBT Commission for the Conservation of Southern Bluefin Tuna CMM Conservation and Management Measure CMS Compliance and Monitoring Scheme CNM Cooperating Non-Member EEZ Exclusive Economic Zone EPA Economic Partnership Agreement FADs Fish Aggregation Devices FFA Pacific Islands Forum Fisheries Agency FSM Federated States of Micronesia FTA Free Trade Agreement HCR Harvest Control Rule HS High Seas IATTC Inter-American Tropical Tuna Commission IOTC Indian Ocean Tuna Commission IPA Interim Partnership Agreement IUU Illegal, Unreported and Unregulated MCS Monitoring, Control and Surveillance MOU Memorandum of Understanding MSC Marine Stewardship Council NC Northern Committee PNA Parties to the Nauru Agreement RFMO Regional Fisheries Management Organisation ROP Regional Observer Programme SC Scientific Committee SIDS Small Island Developing States SKJ Skipjack tuna SPA South Pacific Albacore SPC Secretariat of the Pacific Community TCC Technical and Compliance Committee TRP Target Reference Point UNFSA UN Fish Stocks Agreement VDS Vessel Day Scheme VMS Vessel Monitoring System WCPFC Western and Central Pacific Fisheries Commission WCPO Western and Central Pacific Ocean Jesús IBORRA MARTÍN Administrator PE v /11 CR\ DOC

11 CR\ DOC 11/11 PE v01-00