Why does it take so long to implement EBFM?

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Why does it take so long to implement EBFM?

• Dave Fluharty, SMA UW
• On the Ground In the Water
• University of Washington
• May 1, 2009

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FOCUS ON ECOSYSTEMS
EXPLODES!
Livingston 2002
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Evaluation of EBM for Fisheries in 33 Countries
Pitcher et al. 2008
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THE SAGA OF Ecosystem Principles Advisory Panel

• PRECURSOR NMFS ECOSYSTEM TEAM 1986-87 REPORT
  CHANGE OF ADMINISTRATIONS long time passing
• PRECURSOR ISLANDS INSTITUTE GULF OF MAINE
  CONFERENCE ON EBM 1994/5 LED TO 1996 MSA
  REAUTHORIZATION LANGUAGE BY SEN. SNOWE

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ECOSYSTEM PRINCIPLES ADVISORY PANEL REPORT TO
CONGRESS 1999

• A team of 20 scientists was convened to advise
  Congress on use of ecosystem principles in
  fishery management late 2007.
• Chief recommendation was to develop regional
  Fishery Ecosystem Plans

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ECOSYSTEM PRINCIPLES ADVISORY PANEL EPAP

• Chair, David Fluharty University of Washington
  /NPFMC
• Pete Aparicio Texas Shrimpers Association
  /GOMFMC
• Chris Blackburn Alaska Groundfish Data Bank
• George Boehlert NMFS/Pacific Fisheries
  Environmental Laboratory
• Felicia Coleman Florida State University
  /GOMFMC
• Philip Conkling Island Institute
• Robert Costanza University of Maryland
• Paul Dayton University of California San Diego
• Robert Francis University of Washington
• Doyle Hanan California Department of Fish and
  Game
• Ken Hinman National Coalition for Fisheries
  Conservation
• Ed Houde University of Maryland
• James Kitchell University of Wisconsin
• Rich Langton Maine Department of Natural
  Resources
• Jane Lubchenco Oregon State University
• Marc Mangel University of California Santa Cruz
• Russell Nelson FMFC/ GOMFMC/ SAFMC
• Victoria OConnell Alaska Department of Fish
  and Game
• Michael Orbach Duke University

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EPAP CAVEATS

• WE DO NOT HAVE COMPLETE UNDERSTANDING OF
  ECOSYSTEMS
• WE CANNOT PREDICT CHANGE IN ECOSYSTEMS AT PRESENT
• ECOSYSTEMS EVOLVE OVER TIME
• MANAGEMENT INSTITUTIONS ARE NOT CONFIGURED TO
  ECOSYSTEM SCALE

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High Bar/Low Bar
Perfect information totally integrated management
Status quo?
Completely isolated single species/issue
management
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PREREQUISITES OF EBFM

• EFFECTIVE CONTROL OF FISHERIES BY MANAGEMENT
  SYSTEM
• ABILITY TO ENFORCE REGULATIONS
• ABILITY TO MONITOR HARVESTS -INCLUDING BYCATCH
• ABILITY TO CONTROL CAPACITY TO FISH

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OPERATING RULES EPAP

• RECOMMENDATIONS MUST BE PRACTICAL AND PRODUCE
  CHANGE IN CONTEXT OF CURRENT MANAGEMENT
  INSTITUTIONS
• MORE THAN NEPA
• NO NEW LEGISLATIVE MANDATE

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EPAP ECOSYSTEM PRINCIPLES

• ABILITY TO PREDICT ECOSYSTEM BEHAVIOR IS LIMITED
• ECOSYSTEMS HAVE THRESHOLDS AND LIMITS AFFECTING
  ECOSYSTEM STRUCTURE
• IF LIMITS ARE EXCEEDED, CHANGES CAN BE
  IRREVERSIBLE
• DIVERSITY IS IMPORTANT TO ECOSYSTEM FUNCTIONING
  DEBATED

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ECOSYSTEM PRINCIPLES cont.

• MULTIPLE TIME SCALES INTERACT IN AND AMONG
  ECOSYSTEMS
• COMPONENTS OF ECOSYSTEMS ARE LINKED
• ECOSYSTEM BOUNDARIES ARE OPEN
• ECOSYSTEMS CHANGE WITH TIME

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EPAP ASSESSMENT OF USE OF PRINCIPLES IN U.S.

• PREREQUISTES NOT MET IN MANY US FISHERIES
  IMPROVING
• ECOSYSTEM PRINCIPLES ARE SOMETIMES USED IN U.S.
  FISHERY MANAGEMENT.
• EXAMPLES OF USE ARE GENERALLY LIMITED IN SCOPE

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What is Ecosystem-based Management?
Using what is known about the marine
ecosystem to inform management decisions.
-adapted from the Ecosystem Principles Advisory
Panel, 1999
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ECOSYSTEM BASED MANAGEMENT A PROCESS
Extractive Use
No Use
Prohibited Use
Ecosystem Modified Resilient? Restored?
Ecosystem Modified
Ecosystem Pristine
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EPAP POLICY ADVICE

• CHANGE BURDEN OF PROOF
• APPLY PRECAUTIONARY PRINCIPLE
• PURCHASE INSURANCE
• LEARN FROM MANAGEMENT EXPERIENCE
• USE INCENTIVES TO ACHIEVE GOALS
• PROMOTE FAIRNESS AND EQUITY

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ECOSYSTEM MANAGEMENT GOALS

• MAINTAIN ECOSYSTEM HEALTH AND SUSTAINABILITY

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FISHERIES ECOSYSTEM PLAN FEP - PURPOSE

• PROVIDE CLEAR DESCRIPTION OF ECOSYSTEM AND SOCIAL
  ECONOMIC CONTEXT
• IMPROVE HOW ECOSYSTEM AND SOCIETAL INFORMATION IS
  USED IN MANAGEMENT
• SET POLICIES BY WHICH MANAGEMENT OPTIONS ARE
  DEVELOPED AND IMPLEMENTED

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FISHERY ECOSYSTEM PLAN CONTENTS

• DELINEATE GEOGRAPHIC EXTENT OF ECOSYSTEMS FOR
  MANAGEMENT
• DEVELOP CONCEPTUAL MODEL OF THE FOOD WEB
  DYNAMICS
• DESCRIBE HABITAT NEEDS OF DIFFERENT LIFE HISTORY
  STAGES OF SIGNIFICANT FOOD WEB EFH

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FEP CONTENTS cont.

• CALCULATE TOTAL REMOVALS AND RELATE TO ECOSYSTEM
• ASSESS UNCERTAINTIES AND HOW THEY ARE ADDRESSED
  BY MANAGEMENT
• DEVELOP INDICES OF ECOSYSTEM HEALTH AS MANAGEMENT
  GOAL

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FEP CONTENTS cont.

• DESCRIBE LONG-TERM MONITORING DATA AND HOW THEY
  ARE USED
• ASSESS IMPACTS OF ELEMENTS OUTSIDE CONTROL OF
  FISHERY MANAGEMENT AUTHORITY

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MSA IMPLEMENTATION

• BESIDES EMPHASIS ON STOCK ASSESSMENT MSA 1996
  EMPHASIZED OTHER BUILDING BLOCKS FOR EBFM
• BRING FISHERIES INTO FULL COMPLIANCE WITH
  ENVIRONMENTAL ASSESSMENT NEPA REQUIREMENTS
• DESIGNATE ESSENTIAL FISH HABITAT EFH
• REDUCE BYCATCH
• ETC.

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The Alaskan Ocean Ecosystem
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ALASKA Region

• EVALUATION
• Witherell, D., C. Pautzke and D. Fluharty 2000.
  An ecosystem-based approach for Alaska groundfish
  fisheries. ICES Journal of Marine Science,
  57771-777

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IMPLEMENTATION - NEPA

• EXAMPLE FROM NPFMC REGION
• SUPPLEMENTAL PROGRAMMATIC ENVIRONMENTAL IMPACT
  STATEMENT GROUNDFISH PSEIS
• 9 VOLUMES EXECUTIVE SUMMARY
• 7000 PAGES WEIGHT 41.5 LBS./ 19 KG 2003

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EPAP IMPLEMENTATION

• NATIONAL LEVEL Illustrative
• Senate Hearings 1999
• STOCK ASSESSMENT/ECOSYSTEM- BASED WORKSHOP APRIL
  2000
• NOAA CHESAPEAKE BAY FEP JULY 2000
• MAFAC/NMFS ADVISORY PANEL SEPTEMBER 2001 - 2003
• AFS ECOSYSTEM PANEL AUGUST 2002
• MOTE SYMPOSIUM OCTOBER 2002
• NATIONAL CENTER FOR ECOSYSTEM ANALYSIS AND
  SYNTHESIS MODELS
• FISHERY ECOSYSTEM PLAN DEMO 2003?

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IMPLEMENTATION NATIONAL

• CONGRESS MSFCMA REAUTHORIZATION
• HEFLEY BILL 1999
• GILCHREST BILL 2000
• SNOWE BILL 2000
• KERRY BILL 2000
• FARR BILL 2001
• GILCHREST BILL 2002 MARK-UP JUNE 2002
• KERRY DRAFT 2002 WORKING DRAFT. ETC.
• STEVENS SCHEDULE FOR 2005
• ULTIMATELY REAUTHORIZED 2006.

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EBFM IMPLEMENTATION - REGIONAL

• NPFMC 1994 ECOSYSTEM CONSIDERATIONS/ COMMITTEE/
• ALEUTIAN ISLAND 2005 FEP
• CHESAPEAKE BAY FEP 2000/2006 AGREED BY 5
  STATES
• WPFMC ARCHIPELAGIC FEP 2004
• SAFMC/CFMC/GOM 2.0 MILLION FUNDING FOR
  STARTING FEP 2004
• NEFMC DELINEATE BOUNDARIES 2005
• PFMC 2006 START FEP PLAN PROCESS

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FURTHER EFFORTS national

• --- Executive Order on MARINE PROTECTED AREAS,
  May 26, 2000
• --- Oceans Act 2000 -- US Oceans Commission
  Report 2003/04
• --- PEW OCEAN COMMISSION 2003

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Reasons Why EBFM Not Implemented

• Lack of adequate science?
• Lack of a mandate conflicting mandates?
• Good sectoral management is adequate?
• Inertia?
• Dont know how
• Fear the unknown
• Feuding scientists/ objectives?
• Too complex?
• Transaction costs too high?
• Cant afford it?
• Lack of political will?
• Need for EBFM training and communication?

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Lack of Adequate Science?
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STATUS OF SOCIAL SCIENCES IN NOAA BUDGET
24.7 Million 0.6
3.4 Billion
Source, Wiley 2008
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NOAA SOCIAL SCIENCE STAFFING
Source, Wiley 2008
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Lack Mandate/ Conflicting Mandates?

• Not required
• Not prohibited
• Best Available Science

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Thanks to Steve Murawski
XI-XV How to Implement Ecosystem Management
Ecosystem
Approaches
to Mgt.
There is no manual for what we are attempting!
Thanks to Steve Murawski
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U.S. COMMISSION ON OCEAN POLICY REPORT 2004

• DOUBLE THE AMOUNT OF FUNDING
• CREATE REGIONAL OCEAN ECOSYSTEM COUNCILS
• REFINE THE EXISTING FISHERY MANAGEMENT SYSTEM.
  TO STRENGTHEN THE USE OF SCIENCE AND TO MOVE
  TOWARD A MORE ECOSYSTEM-BASED MANAGEMENT
  APPROACH
• ESTABLISH NATIONAL OCEAN COUNCIL
• REORGANIZE NOAA

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US COMMISSION ON OCEAN POLICY ROC Concept
Policy Context
Understanding ROG
3 Components of ROG
3-Step Analytical Framework
Test of Analytical Framework
Conclusions
National Ocean Council (Ch. 4)
Regional Federal Coordination (Ch. 5)
Mammals (Ch. 20)
Stewardship Advice, Collaboration
Governance Policy Development, Coordination, Faci
litation
Health (Ch. 23)
Coral (Ch. 21)
Offshore Management Regime (Ch. 6)
Fish (Ch. 19)
Regional Ocean Council (Ch. 3,5)
Habitat (Ch. 11)
Ecosystem Assessments (Ch. 5)
Shoreland Development (Ch. 9)
Information Regional Ocean Information Center
Coastal Zone Management (Ch. 9)
Offshore Uses (Chs. 22, 24)
Key
Broad guidelines coordination communication
Ocean Data (Ch. 28)
Scientific Knowledge (Ch. 25)
IOOS (Ch. 26)
Education (Ch. 8)
Functions
Policy Coordination
Collaboration Assistance
Voluntary and flexible, formed by Governors and
other locally-based interests
(Hershman 2005)
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Good sectoral management is adequate?
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Ecosystem-based Management approaches
Single sector management
Ecosystem oriented single sector management
Integrated regional multi-sector management

• Ecosystem Approach to Fisheries (EAF)
• Start with the fishery
• - add issues of ecosystem impact

• Ecosystem Based Fisheries Management (EBFM)
• Start with the ecosystem services
• add fishing

Ecosystem Based management (EBM) - Regional
integrated management, multiple use management

• Traditional fishery management
• target species
• single species or multi-species

Modified from Sainsbury
ESD policy, Fisheries Act and AFMA fisheries
Australias Oceans Policy and Environmental Act
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Steller sea lion bull. Photo NMFS
Photo by USACE, http//www.epa.gov/owow/oceans/ r
egulatory/dumpdredged/dredgemgmt.html
Exploratory drilling in the Beaufort Sea
http//www.mms.gov/alaska/fo/INDEX.HTM
Subsistence salmon http//www.travelalaska.com
http//www.epa.gov/owow/oceans/cruise_ships/
Common murres USFWS
Pollock trawl near Kodiak, Alaska. Photo Mindy
Jones, NMFS
Valdez Cotainer Terminal http//www.ci.valdez.ak.
us/port/marine.html
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Inertia?

• Dont know how
• Fear of the unknown

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FACTORS AFFECTING PACE OF ADAPTATION OF EBFM

• PRICES OF INPUTS, e.g., FUEL
• REVENUE COMPETITION
• CONFLICTS e.g. WARS
• TECHNOLOGY SOLVE/CREATE PROBLEMS
• CHANGING HUMAN VALUES
• NATURAL DISASTERS
• CLIMATE VARIABILITY/CHANGE

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Feuding scientists OR objectives?
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Too complex?
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Generalized Jurisdiction in Alaskas Marine
Waters and Coastal Zone
DNR Oil and Gas (marine-based)
MMS Oil and Gas (marine-based)
US FWS Wildlife refuge mgmt
US FWS Marine mammal protection Migratory birds
NOAA Fisheries Commercial Fishing
ACOE Navigation maintenance Ports and harbors
DNR Coastal Development Anadromous fish habitat
protection
Marine mammal protection
ACOE Dredge spoil dumping
EPA Discharges to waters Ocean dumping
DEC Discharges to waters
ADFG Commercial fishing Recreational fishing
State waters
Federal waters
US EEZ
State-owned submerged lands
Mean Low Tide
Mean High Tide
200 nm
3 nm
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Institutional Profiles(Juda and Hennessey 2001)
Institution Institution Institution Institution Institution Institution Institution Institution Institution
Federal Federal Federal Federal Federal Federal State State State
NOAA Fisheries/ NPFMC US FWS Minerals Mgmt. Service Army Corps EPA NPS AK DEC AK DNR ADFG
Factor Factor Factor Factor Factor Factor Factor Factor Factor Factor
Jurisdiction
Structure
Function
Process
Dynamics
Complexity
Synthesis Synthesis Synthesis Synthesis Synthesis Synthesis Synthesis Synthesis Synthesis Synthesis
Comparison
Composite
Alternative
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ECOSYSTEM STATUS Physical Environment and Links
to Production
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Regional food webs
EBS
GOA
Do these structural differences result in
differences in control?
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Transaction costs too high?
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NOAAs Alignment by Goal
Stakeholders
NOAA Strategic Plan
Partners
Constituents
Employees
Users
NOAA Line Offices (6)
Outcomes

• Ecosystems
• Weather Water
• Climate
• Commerce Transportation

Mission Goal Teams
NOAA Councils (12)
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NOAAs Process



FY
FY/FY/FY/FY/FY
PROGRAMMING
BUDGETING
EXECUTION
PBA Analysis
BOPs
Budget Preparation
Execute Approved LO / Program Annual Oper Plans
DOC Review and Adjustment
Performance Plans
Fiscal Programming Guidance
Monthly/Qtrly Execution Reviews
OMB Review and Passback
Program Plan Development
Presidents Budget Submission to Congress

• Report Results
• Eval Performance
• Make Adjustments

Program Plan Evaluation
Congressional Appropriation
Program Decision Memorandum (PDM)
Apportionment and Allocation of Funds
Close-out
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Cant afford it?

• Loss due to more conservative management?
  Short/Long term?
• Science, monitoring, enforcement needs greater
  than traditional sectoral management?

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Lack of political will?
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Continued Congressional Interest? Interference?

• FOR IMMEDIATE RELEASEMonday, September 15, 2003
  
• LAWMAKERS INSIST ON MORE OPTIONS FOR FISHERY
  MANAGEMENTPress For Alternatives That Reduce
  Economic Pain For New England Fishermen
• Three Massachusetts Members of Congress who have
  played active roles in the efforts to preserve
  New England's fishing industry, today called upon
  the Federal Government's senior official on
  fishing matters to develop new, less economically
  harmful options for management of New England's
  fisheries.
• Senator Edward M. Kennedy and Congressmen Barney
  Frank and John F. Tierney sent a letter to United
  States Secretary of Commerce Donald L. Evans,
  urging him to broaden the management options
  currently under consideration by the New England
  Fisheries Management Council (NEFMC). The letter
  recommends exploring whether more modest
  adjustments to the existing set of New England
  fisheries management measures may be sufficient
  to meet required conservation goals, and
  utilizing alternative scientific models as part
  of the process for developing a final management
  plan.

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The President takes credit
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2006 REAUTHORIZATION AND EBFM

• CONGRESS FINDS THAT COUNCILS ARE INCORPORATING
  ECOSYSTEM APPROACHES
• EMPHASIZES FURTHER DEVELOPMENT
• AUTHORIZES SUPPORT FOR REGIONAL ECOSYSTEM PILOT
  PROGRAMS
• ONE OF THE MORE CONTENTIOUS ISSUES HOW FAR TO
  GO WITH A MANDATE?

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NOAA SAB RECOMMENDS TO DEVELOP REGIONAL
INTEGRATED ECOSYSTEM ASSESSMENTS 7/06

• Regional, collaborative Integrated Ecosystem
  Assessments (IEAs), conveying information on the
  status of ecosystem health and evaluating the
  impacts of current and proposed human activities
  should be the central products of NOAA ecosystem
  science.

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Ecosystem Goal Teams Regional Ecosystem
Boundaries (LMEs)
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Need for EBFM training and communication

• Do we need an Ecosystem Service?
• What about creating a EBFM Culture

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What to Expect in Next 10 Years of EBFM
Implementation

• CHAOS IN THE BEST SENSE
• EVOLUTION TOWARD A REVOLUTION
• SIMILAR TO IPCC DEVELOP ENSEMBLE FORECASTS
• INCREASINGLY COMPREHENSIVE APPROACHES

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What to expect ?

• Great things from the next generation of
  scientists and managers
• Make way!

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THANKS
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RE RESTORATION

• ESTABLISHES COMMUNITY BASED RESTORATION PROGRAMS
  USING PUBLIC PRIVATE PARTNERSHIPS TO RESTORE
  FISHERY AND COASTAL HABITAT

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EXPECTATIONS

• FISHERIES WILL CHANGE UNDER ECOSYSTEM-BASED MGT.
• FISHERIES WILL BE MANAGED FOR ABUNDANCE NOT
  SCARCITY, I.E., LOWER HARVEST RATE FROM HIGHER
  BIOMASS
• LESS FISHING CAPACITY AND EMPLOYMENT BUT HIGHER
  INCOME AND USE OF TECHNOLOGY

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EXPECTATIONS CONT.

• PRACTICES WITH HIGH HABITAT IMPACTS REPLACED BY
  ALTERNATE FISHING TECHNIQUES
• GREATER USE OF SPATIALLY EXPLICIT MANAGEMENT
  MEASURES
• RESTRICTIONS ON FISHERIES TO ACCOMPLISH OTHER
  GOALS, E.G., BIODIVERSITY PROTECTION

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IMPLEMENTATION - EFH

• FULL LIFE-CYCLE APPROACH
• IDENTIFY EFH 100 OF AREA
• MEASURES MUST MEET STANDARD TO MINIMIZE TO
  EXTENT PRACTICABLE EFFECTS OF FISHING ON HABITAT
  MITIGATE EFFECTS THAT ARE MORE THAN SIGNIFICANT/
  NOT MORE THAN TEMPORARY