Fisheries Improvement Project for the Cook Island Albacore and Yellowfin Longline Fishery. Action Plan, Budget and Logframe DRAFT REPORT

Transcription

1 Fisheries Improvement Project for the Cook Island Albacore and Yellowfin Longline Fishery Action Plan, Budget and Logframe DRAFT REPORT March 2014

2 Table of Contents 1. INTRODUCTION 2 2. THE ACTION PLAN 7 GOAL 1. STOCK STATUS AND FISHERIES MANAGEMENT: TO ENSURE THAT THE TUNA CATCHES DO NOT EXCEED SUSTAINABLE LEVELS 8 OUTCOME 1.1 SET REFERENCE POINTS APPLIED IN MANAGEMENT LINKED TO HARVEST CONTROL RULES 8 GOAL 2. ECOSYSTEM MANAGEMENT: TO PROMOTE THE ECOSYSTEM BASED APPROACH TO FISHERIES MANAGEMENT 12 OUTCOME 2.1 RETAINED, BYCATCH AND ETP SPECIES ARE SUBJECT TO A MANAGEMENT STRATEGY 12 OUTCOME 2.2. HABITATS SUBJECT TO A MANAGEMENT STRATEGY 22 OUTCOME 2.3: ECOSYSTEM IMPACTS ARE ASSESSED AND MANAGED 22 GOAL 3. GOVERNANCE SYSTEMS: TO STRENGTHEN GOVERNANCE SYSTEMS IN COOK ISLANDS TUNA FISHERY 25 OUTCOME 3.1: STRENGTHENED DECISION MAKING PROCESSES 25 OUTCOME 3.2: EFFECTIVE APPLICATION OF COMPLIANCE SYSTEMS 25 GOAL 4: IMPROVE THE TRACEABILITY SYSTEM ALONG THE ENTIRE SUPPLY CHAIN SO THAT FISH IS TRACEABLE FROM FISHING GROUND TO PLATE 27 OUTCOME 4.1 IMPLEMENT A TRACEABILITY SYSTEM BUDGET & LOGFRAME 31 FIP ACTION PLAN FOR THE COOK ISLANDS LONGLINE ALBACORE AND YELLOWFIN FISHERY 1

3 1. INTRODUCTION The purpose of this document is to provide background information on the number of activities and outcomes required to support the Fishery Improvement Project (FIP) for the Cook Islands longline albacore and yellowfin tuna fisheries. This follows on from a pre- assessment and scoping study for these fisheries conducted in April The document is divided into a number of sections and includes a summary Action Plan containing information on expected outcomes, activities and milestones, which when completed will meet the Marine Stewardship Council (MSC) scoring guideposts for each of the Principle, the assigned stakeholder responsible for implementing the plan, the current status (ongoing or new) and the expected timeframe to complete the initial tasks. This document is supported by two annexes: a logframe, which summarises the activities, with assigned milestones, sets Objectively verifiable indicators and Means of Verification, and for reference purposes, links these to the relevant scoring guidepost; and a FIP Tracking document which lays out the delivery schedules against the milestones The second section of the document covers Terms of reference for each of the participating stakeholders assigned to complete specific activities; and the required budget. Decisions on the co- funders will be decided for each of the activities. The Units of Certification identified from the pre- assessment were: Longline South Pacific Albacore Tuna caught in Cook Islands Economic Exclusive Zone Longline Western and Central Pacific Yellowfin tuna caught in Cook Islands Economic Exclusive Zone Longline South Pacific Albacore Tuna caught in the Cook Islands adjacent High Seas Longline Western and Central Pacific Yellowfin tuna caught in Cook Islands adjacent High Seas A range of tuna and tuna- like species, as well as bycatch and Endangered, Threatened and Protected (ETP) species, are taken in tuna fisheries, so actions and activities defined will also relate to these species. This document identified the activities and range of tasks required in the Action Plan for the fisheries to reach the Marine Stewardship Council (MSC) standard. The current MSC fisheries methodology, Version 2, is used to define the actions. The most important feature to this is that all target species (Principle 1), must focus on the stock status and management activities throughout the range of the stock, whilst ecosystem interactions (for other retained, bycatch and ETP species) relate FIP ACTION PLAN FOR THE COOK ISLANDS LONGLINE ALBACORE AND YELLOWFIN FISHERY 2

4 specifically to the fishery under assessment. Further changes to the Action Plan may be required, if MSC changes some of the scoring guideposts as part of its review process. It is anticipated that ANOVA Fishing & Living will facilitate the development of the FIP Action Plan, supported by Luen Thai Fishing Ventures and the Cook Islands Ministry of Marine Resources. The overarching management issues fall to the Cook Islands Ministry of Marine Resources, in association with defined management actions prepared by WCPFC (Western and Central Pacific Fisheries Commission). Research functions may be supported by the Secretariat of the Pacific Community (SPC). The Plan is further developed to include a FIP tracking document with activities linked to the MSC scoring guideposts and more specific milestones. The results generated from the Action Plan should have periodic internal and external reviews to ensure they will meet the MSC standard. An assessment of current status of the fisheries against the principle guideposts is summarized below. Table 1: Summary of pre- assessment scoring Principle Component PI number Performance Indicator Likely scoring level 1 Outcome Stock status albacore tuna Stock status yellowfin tuna Reference points albacore tuna Reference points yellowfin tuna Management Harvest Strategy albacore tuna Harvest strategy yellowfin tuna Harvest control rules and tools albacore tuna with condition with condition with condition with condition with condition FIP ACTION PLAN FOR THE COOK ISLANDS LONGLINE ALBACORE AND YELLOWFIN FISHERY 3

5 Harvest control rules and tools yellowfin tuna Information and monitoring albacore tuna Information and monitoring yellowfin tuna Assessment of stock status - albacore tuna Assessment of stock status - yellowfin tuna with condition 2 Retained species Outcome - EEZ with condition Outcome HS with condition Management - EEZ Fail Management HS Fail Information EEZ Fail Information HS Fail Bycatch species Outcome - EEZ with condition Outcome HS Fail Management - EEZ with condition Management HS with condition Information EEZ Fail Information HS Fail ETP species Outcome - EEZ with condition Outcome HS Fail FIP ACTION PLAN FOR THE COOK ISLANDS LONGLINE ALBACORE AND YELLOWFIN FISHERY 4

6 Management - EEZ Management HS with condition with condition Information EEZ with condition Information HS with condition Habitats Outcome - EEZ Outcome HS Management - EEZ Management HS Information EEZ Information HS Ecosystem Outcome - EEZ Outcome HS Management - EEZ Management HS Information EEZ 3 Governance and Policy Information HS Legal and customary framework Consultation, roles and responsibilities Long term objectives Incentives for sustainable fishing Fishery specific Fishery specific objectives FIP ACTION PLAN FOR THE COOK ISLANDS LONGLINE ALBACORE AND YELLOWFIN FISHERY 5

7 management system Decision making processes EEZ Decision making processes HS Compliance and enforcement EEZ Compliance and enforcement HS with conditions with condition with condition Research plan Management performance evaluation A summary of the current status (FIMP- BMT 1 index sheet) is shown in Figures 1 (EEZ fishery) and 2 (High Seas Fishery) Figure 1: MSC BMT Index for the Cook Islands tuna longline fishery in the EEZ (identical scored for albacore and yellowfin) 1 The MSC FIP Benchmarking and Monitoring Tool (BMT) is used to assess the performance of each FIP over its project period. It may also be used by MSC to compare the progress of one FIP against the other. FIP ACTION PLAN FOR THE COOK ISLANDS LONGLINE ALBACORE AND YELLOWFIN FISHERY 6

8 Figure 2: MSC BMT Index for the Cook Islands tuna longline fishery in the High Seas (identical scored for albacore and yellowfin) Figure 2: MSC BMT Index for the Cook Islands tuna longline fishery in the High Seas (identical scored for albacore and yellowfin) 2. THE ACTION PLAN The project goals are as follows: Stock status and fisheries management: To ensure that the tuna catches do not exceed sustainable levels Ecosystem management: To promote the ecosystem based approach to fisheries management Governance systems: To strengthen governance systems in Cook Islands Tuna fishery The 41 outcomes are as follows: The specific activities will be addressed in the section below. FIP ACTION PLAN FOR THE COOK ISLANDS LONGLINE ALBACORE AND YELLOWFIN FISHERY 7

9 GOAL 1. STOCK STATUS AND FISHERIES MANAGEMENT: TO ENSURE THAT THE TUNA CATCHES DO NOT EXCEED SUSTAINABLE LEVELS Outcome 1.1 Set reference points applied in management linked to harvest control rules Activity 1.1.1: Engage with relevant stakeholders to pursue improvements in WCPFC governance, including adoption of formal target reference points for WCPO bigeye and yellowfin, harvest strategy that is responsive to the state of the 2 stocks, HCR that is based on the harvest strategy and formally adopted target and limit reference points, and evidence that the HCR is meeting stock management objectives. The first component falls to the explicit responsibility WCPFC in setting limit and target reference points. However, the introduction of these reference points will also have to apply as a component of the Cook Islands tuna management strategy. The WCPFC General meeting that took place last December (Cairns, 2013) set CMM that agrees to formulate and adopt appropriate limits for CCMs at its next annual session in 2014, based on recommendations from the Scientific Committee. Stock status Yellowfin tuna The latest stock assessment of Yellowfin tuna stocks in the WCPO dates back to 2011 (Langley et al. 2011). The WCPO yellowfin stock is divided into 6 regions: the Cook Islands EEZ falls within region 4 and 6. Impacts are moderate in region 4 (37% catches) and lower in region 1, 5 and 6 (15-25%). Only region 3 is considered fully overexploited, whereas all other regions are considered under- exploited. The WCPFC requires a control on CMM requires CCMs, CNMs and participating territories to take measures not to increase catches by their longline vessels of yellowfin tuna. WCPFC adopted a limit reference point of 20% of the equilibrium spawning biomass that would be expected in the absence of fishing under current environmental conditions (20%SBcurrent, F=0). No target reference points have been defined to date. At its next annual sessions (December 2014), WCPFC plans to formulate and adopt appropriate limits for CCMs, based on recommendations from the Scientific Committee together with in- season reporting requirements to support full implementation of these limits. The objective of the CMM for yellowfin is to maintain fishing mortality at or below FMSY, an implicit target reference point. Target reference points are used in stock assessments and not as basis for yellowfin harvest control rules. FIP ACTION PLAN FOR THE COOK ISLANDS LONGLINE ALBACORE AND YELLOWFIN FISHERY 8

10 South Pacific Albacore The stock is divided in 6 regions, The Cook Islands EEZ is located in region 2. The latest stock assessment (Hoyle et al. 2012) concludes that there is low risk that overfishing is occurring and that the stock is not in an overfished state. Longline catch rates are declining and catches are increasing: aspects which should be taken into account into management. The WCPFC measures only require a control on effort and do not set reference points for South Pacific Albacore Stocks. A limit reference point of 20% of the equilibrium spawning biomass that would be expected in the absence of fishing under current environmental conditions (20%SBcurrent, F=0. An implicit target reference point of MSY is used in stocks assessments but not applied in developing harvest control rules. CMM requires CCMS, CNMs and participating territories to take measures not to increase the number of their fishing vessels actively fishing for South Pacific Albacore in the convention Area south of 20 S above 2005 levels or recent historical levels ( ). The WCPFC has made no statement regarding setting appropriate reference points for CCMs in its next annual session (December 2014). Cook Island scientists may need training in necessary stock assessment skills. Harvest strategy Albacore Regional level CMM sets out the harvest strategy for the South Pacific albacore stock as a whole, requiring no increase in the number of fishing vessels actively fishing for South Pacific albacore above either or 2005 levels. However, the measure specifically allows Pacific Islands to pursue a responsible level of development of their domestic albacore fisheries. The objective of the strategy is to limit the increase in fishing mortality on the stock for precautionary reasons, although the stock has since been evaluated to be well within MSY reference points it is not clear, however, whether this objective has been achieved. The strategy includes requirements for data submission, as well as a stock assessment process as described below, so that monitoring is in place. There are no direct harvest control rules (e.g. a TAC) for the South Pacific albacore stock as a whole, but there are some controls on effort, with the objective of keeping the harvest on the stock at a precautionary level and maintaining stock productivity. As noted above, it is not clear to what extent these are (yet) having a direct impact on the stock, although the stock status is good. FIP ACTION PLAN FOR THE COOK ISLANDS LONGLINE ALBACORE AND YELLOWFIN FISHERY 9

11 National level In addition to this overall strategy for the stock, the Cook Islands have a strategy for managing large pelagic catches in their EEZ (which is part of the UoC for this fishery). These are indirect controls on total large pelagic harvest by longliners, including an upper limit on longline licenses and provision for review of the management system, with options to introduce new management measures, if catches exceed 8000 tonnes. Clearly, these controls cannot be argued to be directly linked to stock status, since they apply generically over a whole series of large pelagic stocks which are targeted by longliners in the Cook Islands EEZ. Overall, the harvest strategy appears to be achieving its objectives in as much as the stock status is good and monitoring is in place. However it is not clear the extent to which the strategy is responsive to stock status e.g. it is not clear what actions would be taken in the event that the next stock assessment is less optimistic about the stock status. Nonetheless, the evidence suggests for now that it is working. Yellowfin Regional level The harvest strategy for Western Pacific yellowfin is set out in CMM (yellowfin and bigeye). The objective of the strategy for yellowfin is to maintain the stock at MSY level which is currently being achieved. For longline, the CMM merely encourages parties not to increase effort. The strategy includes requirements for data submission, as well as a stock assessment process, so that monitoring is in place. It is too early to say whether the strategy is achieving its direct objectives in terms of effort reduction, but despite an earlier CMM attempting to restrict effort on bigeye and yellowfin to levels (CMM ), it looks as if catches remain above levels (see figure below), at least from the purse seine fleet. In addition, estimates of catch are at or above MSY level, suggesting that stock biomass will continue to decline to ~MSY reference point levels. National level Identical to albacore. Overall, it is not clear that either (national or regional) strategy is responsive to yellowfin stock status in any meaningful way and there is a lack of evidence for the WCPFC strategy (for the whole stock) that it is achieving its objectives since the previous CMM does not appear to have been successful in restricting catches. FIP ACTION PLAN FOR THE COOK ISLANDS LONGLINE ALBACORE AND YELLOWFIN FISHERY 10

12 Harvest Control Rules Albacore Regional level There are no direct harvest control rules (e.g. a TAC) for the South Pacific albacore stock as a whole, but there are some controls on effort, with the objective of keeping the harvest on the stock at a precautionary level and maintaining stock productivity. As noted above, it is not clear to what extent these are (yet) having a direct impact on the stock, although the stock status is good. National level For the Cook Islands EEZ, there are further indirect controls on total large pelagic harvest by longliners, including an upper limit on longline licenses and provision for review of the management system, with options to introduce new management measures, if catches exceed 8000 tonnes. Clearly, these controls cannot be argued to be directly linked to stock status, since they apply generically over a whole series of large pelagic stocks which are targeted by longliners in the Cook Islands EEZ. Yellowfin Regional level There are no direct harvest control rules (e.g. a TAC) for the Western Pacific yellowfin stock as a whole, but there are in place, or being put in place, some controls on effort, with the objective of keeping the stock status at or above the MSY level. As noted above, it is not clear to what extent these are (yet) having a direct impact on the stock. National level The same indirect control rules in the Cook Islands EEZ apply for this stock as for albacore. Once Reference points gave been set in management, the Government of the Cook Islands will need to establish a system of effort management and output for all of its fisheries. The associated milestones are: Milestone 1: Evidence of engagement with relevant stakeholders, seeking their support for WCPFC adoption of formal target reference points, harvest strategy that is responsive to the state of the stock, and HCR within a binding WCPFC tropical tuna CMM that implements the harvest strategy and is based on limit and target reference points. Milestone 2: MMR and scientists participating in SC WGs and WCPFC general session discussions on reference points Milestone 3: Workshop on exploring/establishing limits based on TRPs and LRPs and CMM (years levels), and making allowances for uncertainties Milestone 4: WCPFC adopts a formal target reference point for WCPO bigeye and yellowfin tunas. FIP ACTION PLAN FOR THE COOK ISLANDS LONGLINE ALBACORE AND YELLOWFIN FISHERY 11

13 Milestone 5: Development and implementation of a harvest strategy by the WCPFC that is responsive to stock status and fullfils management objectives. WCPFC adopts a tropical tuna harvest strategy that is responsive to the state of the stock and adopts a HCR within a binding CMM that is based on the harvest strategy and target and limit reference points Milestone 6: Establishing a framework at the national level within which harvest control rules would be set Milestone 7: Fisher awareness programme on harvest controls rules Milestone 8: Development and implementation of Cook Island harvest strategy that is responsive to stock status, fullfils management objectives complies with WCPFC CMMs Milestone 9: There is evidence that the harvest strategy and HCR are fulfilling stock management objectives. Assigned stakeholders WCPFC/MMR/LTFV/ANOVA Priority High Timeframe Q MSC Performance Indicator(s) Stock status, Target species reference points, Harvest strategy, Harvest control rules and tools GOAL 2. ECOSYSTEM MANAGEMENT: TO PROMOTE THE ECOSYSTEM BASED APPROACH TO FISHERIES MANAGEMENT Outcome 2.1 Retained, bycatch and ETP species are subject to a management strategy Activity 2.1.1: Improve monitoring systems to supply accurate data on retained catch, by catch and ETP interactions to support robust standardized catch rate modeling. Retained Species Main retained species have been identified as Bigeye Tuna and Blue Marlin (as of March 2014, based on pre- assessment only). The latest Blue Marlin stock assessment (2013) reveals that Pacific Blue Marlin stock is currently not being overfished and is not in an overfished state. The data provided during the pre- assessment was enough to determine the species as a main retained species. However, more data may be required to evaluate the impact of the fishery on the stock. With regards to Bigeye tuna, there is enough quantitative information available to evaluate the impact of the fishery on the stock. The latest Bigeye stock assessment dates back to 2011, which concludes that Bigeye tuna is approaching an oversfished state and that overfishing is occurring. Based on past recruitment, current fishing levels are unsustainable in the long term. The report further concludes that MSY levels would rise if mortality of small fish were reduced. FIP ACTION PLAN FOR THE COOK ISLANDS LONGLINE ALBACORE AND YELLOWFIN FISHERY 12

14 Retained species are recorded in the logbook, with an estimated weight per day per species (SWO, BUM, WAH, DOL, SFA, DOL, Oilfish, moonfish). Numbers of individuals caught per day is also recorded. Actual weight is not recorded in the logbook. All marlin on all vessels seems to be recorded in the logbook as blue marlin, whereas the observer had recorded several striped marlins in his matching records. This implies that either the crew does not differentiate between marlin or they do not know the difference. This may mean under- recording of some retained species. Retained non- target tuna are sometimes not differentiated in the logbook. By catch (discarded) Skipjack and bait (Sardinops saygax) are the two main by catch species identified in the pre- assessment. Other potential bycatch includes Escolar and Sickle Pomfret. There is plentiful information on Skipjack to evaluate the impact of the fishery on the stock. However, there is little quantitative information on the amount of bait used. Based on crew interview (July 2013) the fishery uses sardines (Sardinops saygax). Each vessel takes about kg of bait per trip. 400 to 450 kg are used per set. This species is the target of a pelagic purse- seine fishery off the coast of South Africa since the late A recent rapid and substantial decline in the size of the sardine stock has resulted in reduced sardine catches. Recruitment of sardine has remained below average for 6 consecutive years and as such growth of abundance of the adult population remains slow. The fishery is considered to be optimally exploited. There is currently little information (status unknown) on Escolar and Sickle Pomfret and whether they are main retained species in this fishery. Escolar is a species with low productivity and given their vulnerability should not be considered minor. Another bait species was mentioned by the crew: Pacific Saury (Cololabis saira). ETP species Information on interactions with ETP species continues to be collected by the MMR via observer reports, which are then transferred and processed by the SPC. It is acknowledged, however, that observer coverage is low (not exceeding 8% for the entire Cook Islands fleet) and that this is particularly the case for the distant- water fleets, including the fishery under assessment. Logbooks completion requires the recording of ETP interactions. The majority of ETP interactions are not recorded on a normal (without observer) trips. There are a number of reporting requirements that are embedded in CMMs or other WCPFC decisions, which oblige CCMs to submit information or data to the Secretariat. Some of the provisions specify that CCMs are to provide this information in Part 1 or Part 2 Annual Reports, and others are to be reported to the Secretariat by specific dates. FIP ACTION PLAN FOR THE COOK ISLANDS LONGLINE ALBACORE AND YELLOWFIN FISHERY 13

15 Sharks During pre- assessment, longfin mako and blue sharks appeared to represent the majority of hooked sharks. However, logbook entries did not match observer entries for shark identification, suggesting that the crew lacks competency in shark species identification. Seabirds Based on field interviews, seabird are seen by crew and observers but never interact with the boat and are never hooked. This would need to be confirmed by observer reports and logbook reports. The MMR submits on an annual basis to the WCPFC all available information on interactions with seabirds, including bycatch and details of species, to enable the Scientific Committee to estimate seabird mortality in all fisheries to which the WCPF Convention applies. Furthermore, research on seabird mitigation measures is being undertaken by FFA and SPC with respect to longline fishing contributing to the development and adoption of the conservation and management for seabird mitigation by the WCPFC. Seaturtles Based on crew interviews, turtles are rarely hooked but when they are, these are not recoded and not identified. When hooked, turtles are usually cut loose and released, not de- hooked. This makes identification difficult as turtles remain in the water and at a distance. The CI management plan says that all vessels should adopt the Releasing hooked turtles guidelines and that all hooking s, dead or alive should be reported to the MMR. The crew admits that it is not able to differentiate between turtle species. The MMR reports to the Commission in Part 2 of their annual reports the progress of implementation of the FAO Guidelines and CMM , including information collected on interactions with sea turtles in fisheries managed under the Convention. Furthermore, all data collected by the WCPFC Regional Observer Program (ROP), is also reported to the Commission. For all identified ETP species, the collected information allows for a quantitative estimation of fishery impacts on ETP species in the Cook Islands EEZ, for threats to be identified and for appropriate management measures to be taken. This is especially the case for seabirds, for which extensive research is being undertaken. However, there is some concern that the low level of observer coverage does not allow for an accurate estimate of interactions with ETP species. Additionally, the majority of ETP interactions are not recorded in the logbooks. For the High Seas fishery, reporting requirements rest with the flag state, in this case China and for 3 vessels Micronesia, and are the same as those for the Cook Islands. For further details on WCPFC reporting requirements, see this link: 08b/Suggested- checklist Reporting- Requirements- CMMs- and- other- WCPFC- Decisions. FIP ACTION PLAN FOR THE COOK ISLANDS LONGLINE ALBACORE AND YELLOWFIN FISHERY 14

16 Logbook data is made available to the Samoan government. The original logbook is submitted to the CI government and copies and an additional logbook is made available to the Chinese government. Observers are placed on the boats by the CI government so the observer data is submitted immediately on landing to the CI government, presumably through NOAA. It is unclear who is submitting which data (observer, logbook, port sampling). The aim is to be able to use the port sampling data from American Samoa, the observer data from CI and possibly the logbook data from China as the combined data of these vessels. Milestone 10: Improve logbook completion by crew with regards to all retained species and bycatch (including bait) (e.g. species identification and separation), including trips in the High Seas. Logbook data captures information on all catch and discards to the species level. Milestone 11: Extend and improve port sampling procedures in Rarotonga and Pago Pago to ensure that all vessels landings outside of Cook Islands are covered. Port sampling procedure should cover catches of all retained species and record length frequency data for all retained species. Port sampling records landings of >95% of retained catch to the species level Milestone 12: Onboard observer coverage rate >10%., including those trips on the High Seas Milestone 13: Onboard observer data collection protocols and practices include recording all retained and discarded catch to the species level, haulback disposition of discards, and relevant gear design and fishing method factors needed to develop robust standardized catch rate models for associated and dependent species. Milestone 14: Ensure that all logbook and observer data is communicated and distributed through the correct channels (i.e. Cook Islands, China, SPC) Assigned stakeholders MMR, LTFV, ANOVA, (SPC) Priority High Timeframe Q MSC Performance Indicator(s) and Retained species status and monitoring, and bycatch status and monitoring, and ETP species status and monitoring Activity 2.1.2: Conduct crew training and produce and disseminate outreach materials Milestone 15: Provide crew training in (a) species identification; (b) handling and release best practices for turtles, sharks, cetaceans, and other species;and summary of current regulations and company policies. Milestone 16: Produce, update as needed, include in training courses, and post on each longline vessel a summary of all relevant government (domestic and WCPFC) requirements and company rules. FIP ACTION PLAN FOR THE COOK ISLANDS LONGLINE ALBACORE AND YELLOWFIN FISHERY 15

17 Milestone 17: Evidence that crew are employing prescribed handline and release practices for live sharks and ETP species, via annual assessment of observer records. FIP ACTION PLAN FOR THE COOK ISLANDS LONGLINE ALBACORE AND YELLOWFIN FISHERY 16

18 Assigned stakeholders Priority Timeframe Q MSC Performance Indicator(s) MMR, LTFV, ANOVA, (SPC) High and Retained species monitoring and management and bycatch monitoring and management and ETP species monitoring and management Activity Reduce problematic catch of sharks, billfishes, sea turtles, cetaceans Retained species Main retained species have been identified as Bigeye and Blue Marlin. There are no CMM specific to Blue Marlin. Even though Blue Marlin stocks are not identified as overfished nor as undergoing overfishing, MMR should consider developing a management strategy based on the latest stock assessment (Bill Fish Working group, 2013). Under the WPCPFC, Bigeye tuna management falls under CMM For longline fisheries, the WCPFC specifies catch limits for 2014 and thereafter for 5 countries (flag?) (China, Indonesia, Japan, Republic of Korea, Chinese Taipei and the USA). Furthermore, the WCPFC adopted a limit reference point of 20% of the equilibrium spawning biomass in the absence of fishing under current environment conditions (20%SCcurrent, F=0). No target reference point has been adopted. Reducing F to FMSY (or below) in a stepwise way by the end of 2017 is an implicit interim target and target reference points are used in stock assessments. Formally adopted reference points are not used as the basis for WCPFC bigeye harvest control rules. There are currently no catch limits for the Cook Islands. An effective rebuilding strategy should be developed for Bigeye tuna. Measures should be taken a regional, sub- regional and national levels. This will require CCM and CNMs to implement effective measures but could only be achieved in the much longer term, i.e years, or greater. WCPFC has reaffirmed a number of measures and highlights the basis for extending WCPO management actions to include the following relevant actions: Management measures for both purse seine and longline fisheries to reduce fishing mortality of bigeye, Alternative measures intended to reduce the catch of juvenile tunas, such as a limit on FAD set numbers, Management of the fishing capacity of the non- SIDS CCMs These measures will be advanced by a working Group, tasked with responsibility to develop a multi- year management program for FIP ACTION PLAN FOR THE COOK ISLANDS LONGLINE ALBACORE AND YELLOWFIN FISHERY 17

19 Cook Islands fishery managers and scientists (MMR?) should participate in this WG. Based on the outcome of the full assessment, a management strategy for all retained species will have to be developed and implemented. The strategy will need to be monitored, and the success of any mitigation measures introduced regularly assessed. By catch The pre- assessment has so far identified two main by catch species: skipjack and bait (Sardinops saygax). Skipjack is subject to CMM set by the WCPFC. The CMM sets an implicit reference point of MSY or lower. WCPFC has not yet developed harvest control rules and target reference points are only used in stock assessments. The main binding CMM for WCPO skipjack is CMM and is targeted towards the Purse Seine fishery. With specific reference to the South African bait species sardine Sardinops sagax, current management for this species and anchovy is based on an Operational Management Procedure (OMP) consisting of agreed formulae that base the TAC on observed stock sizes. The OMP formulae have been selected with the objectives of maximising average directed sardine and anchovy catches in the medium term, subject to constraints on the extent to which TACs can vary from year to year in order to enhance industrial stability. The OMP is used to set an annual TAC for directed sardine and an annual initial and final TAC for anchovy, the latter depending on observed anchovy recruitment strength. A fixed precautionary upper catch limit (PUCL) of 100,000 t applies for round herring, irrespective of the size of this population. Juvenile sardine and juvenile horse mackerel are both taken as bycatch during anchovy- directed fishing operations, and a total allowable bycatch (TAB) limit is set for juvenile sardine and a fixed PUCL of 5,000 t is set for horse mackerel. Sharks Regional management WCPFC has an evolving strategy linked to the status of specific shark species. CMM and CMM require that Oceanic whitetip and silky sharks species cannot be landed and must be released as soon as possible after the shark is brought along the vessel. Other species (hammerhead, porbeagle, thresher, shortfin and long fin mako and blue sharks also require specific actions such as recording catch and fins attached to the shark. CMM covers all other shark species and required CCMs to: Implement the FAO International Plan of Action for the Conservation and Management of Sharks (IPOA Sharks). Advise the commission on their implementation of the IPOA sharks Develop national plans of actions or relevant policies for sharks Require from their fishers to fully utilize any retained catches of sharks FIP ACTION PLAN FOR THE COOK ISLANDS LONGLINE ALBACORE AND YELLOWFIN FISHERY 18

20 Require their vessels that have on board fins that total no more than 5% of the weight of sharks on board up to the first point of landing The risk to all species of sharks should be considered and evaluated. National Management The Cook Islands has ratified and is party to the 1973 Convention on International Trade in Endangered Species (CITES). As of January 2013, the Cook Islands Shark Sanctuary was established under the Marine Resources Act 2005, prohibiting the following: Targeting of sharks in a commercial fishery, including the use of gear used to target sharks; Possession of shark material on any commercial fishing vessel; Trading, selling or transferring of any shark- derived material in the Cook Islands. The Sanctuary has only just been established and at the time of the pre- assessment it was too early to establish whether the new regulations are being implemented effectively. Based on the information submitted during the pre- assessment, it is clear that interactions with near- threatened and vulnerable sharks do occur species include blue shark, oceanic whitetip, shortfin mako and longfin mako. Under the new regulations, all of these species would have to be discarded. The number of interactions with sharks needs to be clearly demonstrated - this could be achieved by recording interactions in logbooks or/and by improving observer coverage (as already noted above). The MMR must advise the Commission (in Part 2 of the annual report) on its implementation of the IPOA Sharks, including, results of their assessment of the need for a National Plan of Action and/or the status of their National Plans of Action for the Conservation and Management of Sharks. The report must include key shark species, as identified by the Scientific Committee, in their annual reporting to the Commission of annual catch and fishing effort statistics by gear type, including available historical data, in accordance with the WCPF Convention and agreed reporting procedures. CCMs shall also report annual retained and discarded catches in Part 2 of their annual report. CCMs shall as appropriate, support research and development of strategies for the avoidance of unwanted shark captures (e.g. chemical, magnetic and rare earth metal shark deterrents). High Seas Management For the High Seas area, not in the shark sanctuary, more information on shark catch, retention and discard must be collected in order to show that impacts are within appropriate limits (e.g. observer reports). Management measures implementation on board vessels FIP ACTION PLAN FOR THE COOK ISLANDS LONGLINE ALBACORE AND YELLOWFIN FISHERY 19

21 Sharks are usually hooked on shallower hooks, close to the floats. They are almost always cut loose with hooks still attached (crew afraid of sharks). Sharks are cut loose whether alive of dead. Based on interviews, one captain claims that the majority are released alive. High seas fishing operations results in higher encounters of silky and oceanic white tip sharks. Sharks hooked are recorded in logbooks. Crew would need to be trained on shark handling and species identification to improve logbook recording. LTFV adopted a non- fining shark policy that has been adopted on all boats. Turtles Regional management measures The WCPFC CMM covers all requirements regarding sea turtles in the WCPO. This CMM requires to: Implement the FAO guidelines to Reduce Sea Turtle mortality in Fishing Operations and to ensure safe handling of all captured sea turtles, in order to improve their survival Reporting of WCFPC Regional Observer program Require fishermen to implement best practice for turtle handling (bring aboard unconscious turtles and foster its recovery) Ensure fishermen are aware of and use proper mitigation and handling techniques (as described in WCPFC guidelines) Require longline vessels carry and use line cutters and de- hookers to handle and promptly release sea turtles caught and entangled. Such vessels should also be required to carry and use dip- nets. Require longline vessels to undertake research trials of circle hooks and report those results to the WCPFC National Management The Cook Islands has ratified and is party to the 1973 Convention on International Trade in Endangered Species (CITES). The Cook Islands has a National Plan of Action for Sea Turtle Bycatch Mitigation (NPOA- Turtles), implementing the FAO Guidelines to Reduce Sea Turtle mortality in fishing operations and the Regional Action Plan for Sea Turtle Bycatch Mitigation in respect of fishing in Cook Island Waters and by Cook Island vessels. The NPOA is in line with CMM and includes the introduction of mitigation measures to encourage/ require that fishers take steps to reduce (a) turtle/fishery interactions and (b) mortality rates resulting from such interactions; a training programme for longline operators; circle hook exchange programme; awareness programme for captains and crew; utilisation of observer programmes as a conduit for information on uptake and problems with existing and new turtle by- catch mitigation measures and techniques; creation of ownership and encouragement of voluntary participation in turtle by- catch mitigation activities by involving fishers in research activities. Furthermore, the MMR continues to work closely with the regional agencies (SPC, FFA, SPREP and WCPFC) involved with turtle mitigation FIP ACTION PLAN FOR THE COOK ISLANDS LONGLINE ALBACORE AND YELLOWFIN FISHERY 20

22 as part of its wider work on species of special interest. A relationship has also been developed with SPREP with regards to tagging. In general the plan is to maintain close communications and cooperation with the regional bodies to ensure the best possible mitigation methods are practiced and that accurate and timely information is available to all stakeholders. The Cook Islands also has a memorandum of understanding with the United States covering cooperation in fisheries matters which will extend to assistance with respect to all aspects of fishing including the development of mitigation measures. Management measures implementation on board vessels SPC has already provided turtle identification cards and de- hooking guides which have been distributed to vessel operators. The United States has already assisted with the establishment of a Sea Turtle Mitigation Plan which has included training, the development of information material and the supply of mitigation tools. The client fleet has also demonstrated the use of circle hooks which minimises capture of sea turtles on longlines. A de- hooker pack is present on all vessels, including a line cutter, dip net and 3 various sized de- hookers. All of the hookers are on board the vessels since their initial departure from China and have never been used.all vessels boarded had circle hooks, size 14. Circle hooks are compulsory by Chinese law. All lines were examined and multiple hooks examined per line and all were circle hooks. These measures should be incorporated into the next National Tuna Management Plan. Milestone 18: MMR management plan and regulations are amended to reduce possible problematic catch of non- target retained and discarded species (including endangered, threatened and protected species) and to reduce injury and mortality of discarded catch. Milestone 19: Develop and implement management strategy for Blue and Striped Marlin. Milestone 20: Blue and striped marlin are <5% of retained catch Milestone 21: MMR participating in SC WGs for the revision of the core WCPFC CMM on Bigeye strategy Milestone 22: Catch and / or effort limits set for bigeye tuna for Cook Islands consistent with WCPFC methodology (either levels or an alternative) and based on an historic reference point. Milestone 23: Assess impact of the fishery on bait stocks and determine whether measures should be taken to ensure sustainable use. Milestone 24: Get all hooks to soak below at least 50 meters. Identify other options for changes in fishing gear and practices to reduce unwanted catch and injury. Milestone 25: Evaluate the effectiveness of management mitigation measures for all retained, bycatch and ETP species Milestone 26: Evaluate the effectiveness of national and regional management measures for shark species caught in the fishery i.e. No individual shark species makes up >5% of discarded catch Assigned stakeholders WCPFC with MMR participation; LTFV, ANOVA FIP ACTION PLAN FOR THE COOK ISLANDS LONGLINE ALBACORE AND YELLOWFIN FISHERY 21

23 Priority Timeframe MSC Performance Indicator(s) High Q and annual revisions Retained species management, By catch species management, ETP species management Outcome 2.2. Habitats subject to a management strategy Activity 2.4.1: Incorporate a requirement to record gear losses into the national observer programme This longline fishery is undertaken in deep oceanic waters and does not physically interact with any benthic habitat or FADs during its operation. However, whilst it is unlikely that there will be significant losses of gear or lost gear from these fisheries impacting on target species and ecosystems, it will be important to extend the observer scheme to record any gear loss. Milestone 27: Gear losses incorporated into observer reporting Assigned stakeholders MMAF, LTFV (SPC?) Priority Medium Timeframe Q MSC Performance Indicator(s) 2.4.1, 2.4.2, Habitat status, management and monitoring Outcome 2.3: Ecosystem impacts are assessed and managed Based on the Sibert et al (2006) study, it is unlikely that the tuna harvested by the LTFV fleet in the Cook Islands EEZ is having an irreversible impact on ecosystem functioning. The current WCPFC management strategy (CMM ) for the major tuna species, including bigeye, yellowfin and skipjack for the High Seas and EEZs is aimed at maintaining those stock at, at a minimum, levels capable of producing their maximum sustainable yield (MSY). As such, provided that the harvest control rules are capable of ensuring this aim is met by CCMs, the fishery is unlikely to disrupt the key elements underlying ecosystem structure and function to a point where there would be a serious or irreversible harm. Activity 2.5.1: Ecosystem impacts are subject to a management strategy Regional level - information collection There is increasing effort by a range of organizations to collect detailed data on the structure of the Pacific Ocean pelagic ecosystem. This effort occurs through observer programmes (e.g. bycatch composition and quantities), trophic analyses (e.g. stomach contents, stable isotopes), and mid- trophic level sampling (e.g. acoustics and net sampling of micronekton and zooplankton). Despite the highly FIP ACTION PLAN FOR THE COOK ISLANDS LONGLINE ALBACORE AND YELLOWFIN FISHERY 22

24 valuable information they provide on the knowledge of the ecosystem structure and functioning, the collection of observer data is still relatively recent, with low coverage. Moreover, trophic analyses and mid- trophic level sampling are conducted on a project- by- project basis and are not continuous in space and time, thus limiting their use for long- term monitoring and EAFM. FIP ACTION PLAN FOR THE COOK ISLANDS LONGLINE ALBACORE AND YELLOWFIN FISHERY 23

25 National/Sub- regional information collection The FFA has since 2005 started in- country EAFM work to generate EAFM reports that will provide the basis for the development of operational and/or tuna management plans. To assist member countries implement EAFM, the FFA have developed a Pacific Islands Forum Fishery Agency EAFM Framework. This framework comprises a number of stages, which lead to the eventual identification and prioritization of issues related to the current state of tuna resources, environment and social- economics. This then leads to the eventual programming of priority activities into operational framework and action plans. The process takes into account ecosystem considerations in the management of tuna fisheries. The FFA EAFM processes consists in four main stages of scoping, issues identification, issues prioritization and risk assessment and management system. To date, EAFM reports have been done for the Cook Islands. Regional level - management The FAO Code of Conduct for Responsible fisheries states that fisheries management should ensure the conservation not only of target species, but also sympatric non- target species. This resolution is now explicit in WCPFC measures, which relate to highly migratory fish species and extends to the management of non- target species, in particular through Resolution on Non- Target Fish Species, as well as CMM on the management of bigeye, yellowfin and skipjack (including achievement of MSY, seasonal FAD closures for purse seine fishery). Although not yet fully in place for the entire WCPFC convention area, there is at least a partial strategy in place that takes into account available information and is expected to restrain impacts of the fishery on the ecosystem Milestone 28: Support continuity in observer data collection on by catch composition and quantities in the Cook Islands EEZ and adjacent High Seas Milestone 29: Support continuity in regional, sub- regional and national projects for trophic analyses and mid- trophic level sampling Assigned stakeholders Priority Timeframe MSC Performance Indicator(s) FFA, MMAF Intermediate Continuous 2.5.1, 2.5.2, Ecosystem status, management and monitoring FIP ACTION PLAN FOR THE COOK ISLANDS LONGLINE ALBACORE AND YELLOWFIN FISHERY 24

26 GOAL 3. GOVERNANCE SYSTEMS: TO STRENGTHEN GOVERNANCE SYSTEMS IN COOK ISLANDS TUNA FISHERY Outcome 3.1: Strengthened decision making processes Activity 3.1.1: Strengthen the regional decision making processes for high seas management Decision- making responds to research, monitoring, evaluation and consultation at both regional and national level. As a concrete example, the Cook Island Shark Sanctuary was established following submission to cabinet of a proposal by the NGO, Pacific Islands Conservation Initiative Trust (PICI). For the Cook Islands EEZ, regional and national decision making processes apply and are sufficient to realize measures and strategies that achieve fishery specific objectives. For the high seas, only the regional decision making processes apply and tend to be too slow, because of consensus requirements and may only respond to the most important issues. Milestone 30: Advocate improvement in WCPFC decision- making processes, with a focus on the high seas Assigned stakeholders WCPFC/MMAF Priority High Timeframe Q MSC Performance Decision making processes Indicator(s) Outcome 3.2: Effective application of compliance systems Activity 3.2.1: Strengthen the compliance monitoring system Regional MCS The WCPFC aims to ensure compliance through VMS, IUU vessel list, port state controls, observers, logbooks, transhipment monitoring. The WCPFC s Technical and Compliance Committee is also continuing consideration of port State measures, chartering arrangements, catch/statistical documentation, the control of nationals, and compliance monitoring and reporting. The WCPFC relies largely on the IUU vessel listing process as an incentive for compliance. There are no other sanctions in place for non- compliance by members with CMMs. The combination of MCS and compliance mechanisms at WCPFC level creates a system that has been demonstrated to be comprehensive and effective in the longline fisheries. Penalties are appropriate and applied, and are an effective deterrent. There are generally good levels of compliance by fishers. FIP ACTION PLAN FOR THE COOK ISLANDS LONGLINE ALBACORE AND YELLOWFIN FISHERY 25