The Use of Limited Access Privilege Programs in Mixed-Use Fisheries (2021) / Chapter Skim
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Pages 3-22
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From page 3... ...
In accordance with the MSA, the Councils are composed of officials from state, federal, and tribal governments and knowledgeable people with a stake in fisheries management. Their primary duties are the preparation, monitoring, and revision of Fishery Management Plans (FMPs)
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From page 4... ...
An ad hoc committee was convened by the National Academies of Sciences, Engineering, and Medicine to consider the use of LAPPs in the following mixed-use fisheries: red snapper, grouper and tilefish, managed by the Gulf of Mexico Fishery Management Council; wreckfish, managed by the South Atlantic Fishery Management Council; golden tilefish, managed by the Mid-Atlantic Fishery Management Council; and bluefin tuna, a highly migratory species managed by the Secretary of Commerce. The committee's tasks for this report were to: 1.
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From page 5... ...
They recognize the scarcity of seminal data and studies that would enable a clearer picture of how the commercial, for-hire, and recreational fisheries for particular species, or species complexes, interact. The implementation of LAPPs in mixed-use fisheries has often coincided with stricter controls on overfishing, stock rebuilding programs, intensified monitoring, and other fishery management measures.
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Beginning from unregulated open access, the diagram represents three pathways: (1) limiting catch, beginning with limited access and adding restrictions on total allowable catch, allocating harvest rights through catch shares, individual allocation through individual fishing quota (IFQ)
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Mixed-Use Fisheries Mixed-use fisheries, as defined in the Modernizing Recreational Fisheries Management Act of 2018, are those where recreational, charter (i.e., for-hire) , and commercial fishing sectors target the same species or stocks.
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The bluefin tuna fishery, managed by the Highly Migratory Species Division of the NMFS, is the most complex in terms of the variety and number of sectors, although the pelagic longline sector, which is managed through a LAPP for bycatch, is relatively small. It is one of the two cases in which there are multiple commercial fishing sectors besides the LAPP sector: for bluefin tuna, the pelagic longline IBQ sector plus purse seine, trap, harpoon, and general category (hook and line)
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f Fishing vessels in the grouper-tilefish ITQ program combined with those in the red snapper program. SOURCE: Grouper-tilefish LAPP review.
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From page 10... ...
In most cases the program reviews contained little empirical evidence that would enable evaluating social, cultural, and community aspects of the programs, reflecting the underdevelopment of data collection and analysis for social impact analysis. In addition, the committee concurred with the LAPP review guidelines that some LAPPs lacked key components including quantitative targets for specific major objectives, clear definitions of objectives such as "viability" or "overcapitalization," and appropriate metrics and/or data for identifying progress toward achieving objectives.
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SOCIAL AND ECONOMIC EFFECTS FOR COMMERCIAL PARTICIPANTS IN RELEVANT MIXED-USE FISHERIES The committee evaluated the LAPPs included in this study in relation to expected or commonly observed economic and social impacts. The committee found no reason to expect that hypothesized mechanisms for the effects of LAPPs on the commercial fisheries would differ when used within mixed-use fisheries although it is possible that activity by sectors outside the LAPP, the for-hire and recreational sectors, could amplify problems that LAPPs are meant to address such as the race to fish.
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From page 12... ...
In all four of the traditional LAPP ITQ programs examined in this study (exclusive of the bycatch-based bluefin tuna IBQ) , ex-vessel fish prices were considered to have become more stable as a result of implementing the ITQ program.
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However, these effects can be difficult to assess due to data deficiencies regarding individual identities and histories of participation. No information was available on labor and employment shifts due to LAPPs for the wreckfish, golden tilefish, and Atlantic bluefin tuna programs.
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From page 14... ...
As seen in the Gulf of Mexico IFQ programs and the Mid-Atlantic golden tilefish IFQ program, shareholders have formed associations to represent their interests, potentially changing the political dynamic of fisheries management. In some respects, the rise of formal associations representing commercial fishing shareholders is seen as a counterweight to large nongovernmental organizations representing environmental or recreational fishing interests, especially at the Council level.
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From page 15... ...
, and implied discount rates. SOCIAL AND ECONOMIC EFFECTS OF LAPPs FOR RECREATIONAL FISHERY STAKEHOLDERS IN MIXED-USE FISHERIES The effects of LAPPs on recreational participants in mixed-use fisheries are most likely to arise as spillovers between the changing terms of fishery access on the commercial side of the LAPP and the availability, access, or quality of recreational experience available to recreational anglers.
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From page 16... ...
Regarding between-season impacts, it is conceivable that if the commercial LAPPs facilitated the rebuilding of target stocks or prevented overharvest of commercial allocations, more harvest could be available to recreational and for-hire sectors. In the case of golden tilefish in the Mid-Atlantic, the Council predicted that rebuilding the biomass of tilefish might encourage more recreational activity, and therefore included new restrictions for the recreational sector in a 2017 amendment to the Fishery Management Plan, going into effect in 2021.
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From page 17... ...
This is true even for places with relatively high degrees of engagement in, and dependence on, fishing locations and well known to be important centers for commercial and/or recreational fishing. The committee's main findings are that beyond these social indicator descriptions and limited ethnographic studies, the ability to assess the impacts of fishery management policies on communities in these mixed-use fisheries is underdeveloped because of the paucity of data and analytic tools for clearly linking policy changes to social variables.
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From page 18... ...
RECOMMENDATIONS FOR EXISTING AND FUTURE LAPPs Impacts to Recreational Stakeholders Conclusion: A major finding of this study is that there is little if any direct impact of LAPPs in the commercial sectors on the recreational sector of the mixed-use fisheries. However, LAPPs may be viewed as problematic to efforts to expand recreational access to the total allowable catch for a fishery because of shifts in the power structure of decision making with the creation of a class of IFQ shareholders.
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From page 19... ...
If such data are not available, the Councils should consider delaying the creation of a LAPP for a limited time to conduct a rapid assessment of crew contributions that would inform initial allocations. Impacts to Fishing Communities Conclusion: There is evidence from Alaska and other regions that LAPPs can have discernable and sometimes negative effects on communities through changes such as increased social conflict, diminished employment, or loss of product for processing plants.
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From page 20... ...
For fisheries where LAPPs may be contemplated, given the likelihood of having to make significant trade-offs, there is a pressing need for additional economic and social data, including pre-implementation baselines and concurrent examination of the LAPP in relation to other sectors of the fisheries. Committee recommendations emphasized introducing demographic data collection, expanding captain and crew data collection; improving the utility of social indicator data; making quota share and allocation data more transparent, comprehensive, and widely available; and developing data collection programs for mixed-use fisheries that enable assessment of the human dimensions of recreational and for-hire fisheries as well as commercial fisheries.
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From page 21... ...
The committee's appraisal of the influence of LAPPs in mixed-use fisheries is constrained by the scarcity of data and studies that would enable a clearer picture of how the commercial, forhire, and recreational fisheries for particular species or species complexes interact. The existence of LAPPs in the mixed-use fisheries of the Gulf and the Atlantic coasts is fairly new.
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