The Role of Science in Fisheries Policy and Management

Transcription

1 The Role of Science in Fisheries Policy and Management Jeffrey Hutchings Killam Memorial Chair in Fish, Fisheries and Oceans Dalhousie University, Halifax, Nova Scotia

2 Elements of Precaution: Recommendations for the Regulation of Food Biotechnology in Canada ( ) Spencer Barrett, U. Toronto Joyce Beare-Rogers, Ottawa Conrad Brunk, U. Waterloo Timothy Caulfield, U. Alberta Brian Ellis, UBC Marc Fortin, McGill Anthony Ham Pong, Ottawa Jeffrey Hutchings, Dalhousie The Role of Science in Fisheries Policy and Management Jeffrey Hutchings Killam Memorial Chair in Fish, Genetically Fisheries and Oceans Dalhousie University, Halifax, Nova Scotia John Kennelly, U. Alberta Jeremy McNeil, Laval Leonard Ritter, Guelph Karin Wittenberg, U. Manitoba Campbell Wyndham, Carleton Rickey Yada, Guelph Modified Fish

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4 Canada s national, arms-length-from-government, Science Advisory Body on Species at Risk Chair: Member: Aboriginal Traditional Knowledge Process and Protocol Guidelines (2010)

5 SENATE SÉNAT Invitations to House of Commons and Senate Standing Committees ( ) HOUSE OF COMMONS CANADA CANADA NORTHERN COD: A FAILURE OF CANADIAN FISHERIES MANAGEMENT REPORT OF THE STANDING COMMITTEE ON FISHERIES AND OCEANS Tom Wappel, M.P. Chair November

6 (1999; Can. J. Fish. Aquat. Sci.) Links Between Fishers Knowledge, Fisheries Science, and Resource Management: Newfoundland s Inshore Fishery for Northern Cod Jeffrey Hutchings & Mark Ferguson (2000) Chapter 5 in Finding Our Sea Legs, Institute of Social and Economic Research, St. John s, NL (2000; Can. J. Fish. Aquat. Sci.)

7 Those who do not fish Food retailers and consumers Cod-pot fishers Canada s fisheries are a common property resource, belonging to all the people of Canada. (Supreme Court, 1997) Bottom-trawl fishers Aboriginal fishers

8 Supreme Court of Canada (1997) It is the Minister s duty to manage, conserve and develop the fisheries on behalf of Canadians in the public interest. Precautionary Approach

9 United Nations Fish Stocks Agreement (1995) Signatories shall apply the Precautionary Approach by determining stock-specific Reference Points and the action to be taken if the Reference Points are exceeded (i.e., Harvest Control Rules)

10 (Fishing Mortality or Harvest Rate) Reference Point (Upper Stock Reference; Target Reference Point) Reference Point (B LIM ) Harvest Control Rule (Removal Reference; Harvest Decision Rule) (Spawning Stock Biomass) /fish-ren-peche/sff-cpd/precaution-eng.htm

11 Sustaining Canada s Major Fish Stocks (Commissioner of the Environment and Sustainable Development, 2016) Objectives in Integrated Fisheries Management Plans are often not stipulated, not clear, not measurable There are no rebuilding plans, or timelines for developing them, for 80% of Canada s major, severely depleted fish stocks Reference Points have not been developed for more than half of Canada s major fish stocks

12 Recovered/Rebuilt Fish Stocks in U.S. and Europe Species Population Minimum Stock Size (as % of maximum) Atlantic cod NE Arctic 9% Atlantic cod Iceland 13% Black sea bass Mid-Atlantic coast 26% Black sea bass SW Atlantic 28% Acadian redfish Gulf of Maine/Georges Bank 2% Windowpane S. New England/Mid-Atlantic 2% Yellowtail S. New England/Mid-Atlantic 3% Haddock Gulf of Maine 4% Widow rockfish Pacific coast 24% Pollock Gulf of Maine/Georges Bank 21% Spiny dogfish Atlantic coast 17% Scup Atlantic coast 21% Swordfish N Atlantic 37% Atlantic herring Norwegian spring-spawning 2% Monkfish Gulf of Maine/N Georges Bank 41% Monkfish S Georges Bank/Mid-Atlantic 68% Bluefish Atlantic coast 29% King mackerel Gulf of Mexico 32% Golden Tilefish Mid-Atlantic coast 5% Butterfish Gulf of Maine/Cape Hatteras 53% Hutchings (2015) Proc. R. Soc. B

13 Recovered/Rebuilt Fish Stocks in U.S. and Europe Species Population Minimum Stock Size (as % of maximum) Atlantic cod NE Arctic 9% Atlantic cod Iceland 13% Black sea bass Mid-Atlantic coast 26% Black sea bass SW Atlantic 28% Acadian redfish Gulf of Maine/Georges Bank 2% Windowpane S. New England/Mid-Atlantic 2% Yellowtail S. New England/Mid-Atlantic 3% Haddock Gulf of Maine 4% Widow rockfish Pacific coast 24% Pollock Gulf of Maine/Georges Bank 21% Recovery is also Spiny dogfish Atlantic coast 17% Scup Atlantic increasingly coast uncertain and 21% Swordfish N Atlantic increasingly delayed the 37% Atlantic herring Norwegian spring-spawning longer it takes to 2% Monkfish Gulf of Maine/N Georges Bank 41% Monkfish S Georges meaningfully Bank/Mid-Atlantic reduce 68% Bluefish Atlantic coast fishing mortality. 29% King mackerel Gulf of Mexico 32% Golden Tilefish Mid-Atlantic coast 5% Butterfish Gulf of Maine/Cape Hatteras 53% Median Rebuilding Time ~20 years Recovery is particularly slow and increasingly uncertain when stock size falls below 10% of the maximum Hutchings (2015) Proc. R. Soc. B

14 Catch (1000 tonnes) Northern Cod Catch History ( ) Year From: Hutchings & Myers (1995)

15 99% decline DFO (2016) CSAS Sci. Adv. Rept 2015/

16 Catch (1000 tonnes) 800 Northern Cod In 3 years, 66% B lim What is the status of Canada s major fish Currently 34% B lim Limit Reference Point (B lim ) stocks when compared with other countries? Year From: Hutchings & Myers (1995)

17 B B MSY Western & Central Fisheries Commission New Zealand South Africa Canada Fish stock status compared to a globally accepted stock biomass target (MSY), based on multi-stock indices, by jurisdiction, for which data on Bmsy were available in 2011 ICCAT(tunas) NAFO US EU Argentina Royal Society of Canada Expert Panel Report (2012) Australia

18 Impediments to full and consistently applied implementation of sustainable fisheries policy in Canada Regulatory conflict Lack of proscriptive enabling legislation 2012 Ministerial discretion Inadequate and(or) opaque incorporation of science in sustainable fisheries policy and fisheries decision-making Subsuming of Science advice in Fisheries Management/ Ministerial decisions

19 Prior to 2011?

20 Decision-Making Components Science Socio- Economics Politics Other (policy, legal, culture) To what extent should government decisions Socio-Economic be influenced by science? Science Politics Other (e.g., policy, legal, cultural)

21 Science One Variant Science-based Decision Making Non-Science Factors (e.g., politics, socio-economics, other) Raises questions concerning the integrity Science of science-based Other decisions and the transparency of the science advice

22 Independent & objective (lacking vested interests) Best available evidence (based on peer review) Consensus & uncertainty (e.g., forecasting policy outcomes) Ideal Scientific Advice Communication & transparency (to decision-makers and public)

23 What are the outcomes of an effective science advisory process? Public & parliament are confident that government is using science in the best interests of society. Ministers are confident that advice is based on a rigorous, objective assessment of all available science Public and parliament need to be able to fully assess the scientific basis of science-based decisions. Science Advice needs to be publicly distinguishable from Fisheries Management decisions.

24 Reference points will be determined by the best available science. To what extent are decisions on Reference Points and Harvest Control Rules determined by science in Canada?

25 (Fishing Mortality or Harvest Rate) The development of [harvest] decision Reference rules Point is a (Upper Stock Reference; Management Target Reference Point) responsibility and Science s role is to provide advice in support of their development. Reference Point (B LIM ) Sustainable Fisheries Framework: socio-economic factors may influence the location of the USR The USR [is] developed by fishery managers informed by consultations with the fishery and other interests, with advice and input from Science. Harvest Control Rule (Removal Reference; Harvest Decision Rule) (Spawning Stock Biomass) /fish-ren-peche/sff-cpd/precaution-eng.htm

26 Harvest Control Rule for 3Ps Atlantic Cod If the 3-year average SSB [Spawning Stock Biomass] stock is below B LIM, consideration may be given to whether directed fishing will be permitted at some level [italics added]. Limit Reference Point (B LIM ) Directed fishing should not be approved if the decline below B LIM is substantial, and should not continue for an extended period, without evidence that recovery will occur within a reasonable timeline. /fish-ren-peche/sff-cpd/precaution-eng.htm

27 Harvest DFO s Sustainable Control Rule Fisheries for Framework: 3Ps Atlantic Cod If Stock Biomass falls below B If the 3-year average SSB [Spawning LIM, Stock Biomass] stock is removals by all human sources must be below B LIM, consideration may be given to whether directed kept to the lowest possible level. fishing will be permitted at some level [italics added]. If Stock Biomass falls below B LIM, Limit there Reference is no Point (B LIM ) directed fishery. Directed fishing should not be approved if the decline below B LIM is substantial, and should not continue for an extended period, without evidence that recovery will occur within a reasonable timeline. /fish-ren-peche/sff-cpd/precaution-eng.htm

28 PA Element Canada (DFO) USA (SSCs) EU (ICES) Catch quota/fishing mortality Target Ref. Point 1.6 (USR) 1.5 Harvest 1.4 Control Rule Science advice not always clear; it can be subsumed Science determines upper limit Science advice always clear Limit Ref. Point Science Science Science Mgmt & Industry (Science???) Mgmt & Industry (Science???) Role of science lacks full clarity and transparency, thus diminishing integrity and accountability. Science Science Science Science(Industry) 1 1 If a management plan has been evaluated by ICES not to be consistent with the PA, ICES will provide advice that is consistent with the PA. SSCs = Scientific and Statistical Committees; ICES = Int. Council for the Explor. Sea

29 The Precautionary Approach can be misused by any stakeholder group intent on pursuing its own objectives to the exclusion of others. Kevern Cochrane (Rhodes Univ., South Africa) : Chief, Fisheries Management & Conservation Serv., FAO, Rome There is a need to put measures in place to restrict misuse as far as possible, such as ensuring balanced stakeholder participation in decision-making and utilising truly independent peer-review of all aspects of management and decision-making. July 2016

30 Recommendation: Policy Clarifications to the Sustainable Fisheries Framework (SFF) Unambiguously articulate the roles of Science and Fisheries Management in setting Reference Points and Harvest Control Rules Quantitatively clarify the SFF policy in regard to Reference Points: If B< B LIM then F Directed Fishery = 0 What is the acceptable risk (vis-á-vis the USR) of approaching B LIM? Ensure that Science Advice is always available and always distinguishable from Fisheries Management decisions

31 Recommendation: Communication, Transparency, Accountability Presentation of an Annual Report to Parliament on the Status of Canadian Fisheries

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33 Recommendation: Communication, Transparency, Accountability Presentation of an Annual Report to Parliament on the Status of Canadian Fisheries Commit to full implementation of Science Advice for Government Effectiveness (SAGE, approved by Federal Cabinet in 2000)

34 Recommendation: Amend the Fisheries Act Identify full implementation of the Precautionary Approach as an over-arching objective Identify prescriptive legislative requirements to prevent overfishing and to rebuild depleted fisheries Ensure transparency and accountability in fisheries management plans by requiring the setting of quantitative rebuilding objectives

35 Supreme Court of Canada (1997) Canada s fisheries are a common property resource, belonging to all the people of Canada It is the Minister s duty to manage, conserve & develop the fisheries on behalf of Canadians in the public interest Intent of Recommendations Increase effectiveness of government decision-making Enhance the confidence of decision-makers and all stakeholders Strengthen application of the Precautionary Approach Clarify the contributions of science to decision-making