SPEAKERS CONTENTS INSERTS
Page 1 TOP OF DOC
64–488 l
2000
H.R. 3331, THE ATLANTIC HIGHLY MIGRATORY SPECIES CONSERVATION ACT; H.R. 3390, THE ATLANTIC HIGHLY MIGRATORY SPECIES CONSERVATION ACT; H.R. 3516, TO PROHIBIT PELAGIC LONGLINE FISHING IN THE EXCLUSIVE ECONOMIC ZONE IN THE ATLANTIC OCEAN
HEARING
before the
SUBCOMMITTEE ON FISHERIES, CONSERVATION, WILDLIFE AND OCEANS
of the
COMMITTEE ON RESOURCES
HOUSE OF REPRESENTATIVES
ONE HUNDRED SIXTH CONGRESS
SECOND SESSION
FEBRUARY 8, 2000, WASHINGTON, DC
Page 2 PREV PAGE TOP OF DOC
Serial No. 106–68
Printed for the use of the Committee on Resources
Available via the World Wide Web: http://www.access.gpo.gov/congress/house
or
Committee address: http://www.house.gov/resources
COMMITTEE ON RESOURCES
DON YOUNG, Alaska, Chairman
W.J. (BILLY) TAUZIN, Louisiana
JAMES V. HANSEN, Utah
JIM SAXTON, New Jersey
ELTON GALLEGLY, California
JOHN J. DUNCAN, Jr., Tennessee
JOEL HEFLEY, Colorado
JOHN T. DOOLITTLE, California
WAYNE T. GILCHREST, Maryland
KEN CALVERT, California
RICHARD W. POMBO, California
BARBARA CUBIN, Wyoming
HELEN CHENOWETH-HAGE, Idaho
GEORGE P. RADANOVICH, California
Page 3 PREV PAGE TOP OF DOC
WALTER B. JONES, Jr., North Carolina
WILLIAM M. (MAC) THORNBERRY, Texas
CHRIS CANNON, Utah
KEVIN BRADY, Texas
JOHN PETERSON, Pennsylvania
RICK HILL, Montana
BOB SCHAFFER, Colorado
JIM GIBBONS, Nevada
MARK E. SOUDER, Indiana
GREG WALDEN, Oregon
DON SHERWOOD, Pennsylvania
ROBIN HAYES, North Carolina
MIKE SIMPSON, Idaho
THOMAS G. TANCREDO, Colorado
GEORGE MILLER, California
NICK J. RAHALL II, West Virginia
BRUCE F. VENTO, Minnesota
DALE E. KILDEE, Michigan
PETER A. DeFAZIO, Oregon
ENI F.H. FALEOMAVAEGA, American Samoa
NEIL ABERCROMBIE, Hawaii
SOLOMON P. ORTIZ, Texas
OWEN B. PICKETT, Virginia
FRANK PALLONE, Jr., New Jersey
Page 4 PREV PAGE TOP OF DOC
CALVIN M. DOOLEY, California
CARLOS A. ROMERO-BARCELÓ, Puerto Rico
ROBERT A. UNDERWOOD, Guam
PATRICK J. KENNEDY, Rhode Island
ADAM SMITH, Washington
CHRIS JOHN, Louisiana
DONNA MC CHRISTENSEN, Virgin Islands
RON KIND, Wisconsin
JAY INSLEE, Washington
GRACE F. NAPOLITANO, California
TOM UDALL, New Mexico
MARK UDALL, Colorado
JOSEPH CROWLEY, New York
RUSH D. HOLT, New Jersey
LLOYD A. JONES, Chief of Staff
ELIZABETH MEGGINSON, Chief Counsel
CHRISTINE KENNEDY, Chief Clerk/Administrator
JOHN LAWRENCE, Democratic Staff Director
Subcommittee on Fisheries Conservation, Wildlife and Oceans
JIM SAXTON, New Jersey, Chairman
W.J. (BILLY) TAUZIN, Louisiana
JAMES V. HANSEN, Utah
Page 5 PREV PAGE TOP OF DOC
WAYNE T. GILCHREST, Maryland
RICHARD W. POMBO, California
WALTER B. JONES, Jr., North Carolina
MARK E. SOUDER, Indiana
ROBIN HAYES, North Carolina
MIKE SIMPSON, Idaho
ENI F.H. FALEOMAVAEGA, American Samoa
BRUCE F. VENTO, Minnesota
PETER A. DeFAZIO, Oregon
NEIL ABERCROMBIE, Hawaii
SOLOMON P. ORTIZ, Texas
FRANK PALLONE, Jr., New Jersey
CARLOS A. ROMERO-BARCELÓ, Puerto Rico
ADAM SMITH, Washington
HARRY BURROUGHS, Staff Director
DAVE WHALEY, Legislative Staff
JEAN FLEMMA, Democratic Legislative Staff
C O N T E N T S
Hearing held February 8, 2000
Statements of Members:
Page 6 PREV PAGE TOP OF DOC
Faleomavaega, Hon. Eni F.H., a Delegate in Congress from American Samoa
Goss, Hon. Porter J., a Representative in Congress from the State of Florida
Prepared statement of
Pallone, Frank, Jr., a Representative in Congress from the State of New Jersey
Saxton, Hon. Jim, a Representative in Congress from the State of New Jersey
Prepared statement of
Statements of witnesses:
Caputi, Mr. Gary, Co-Chairman, Highly Migratory Species Committee, Jersey Coast Anglers Association
Prepared statement of
Dalton, Penelope, Assistant Administrator for Fisheries, National Marine Fisheries Service, National Oceanic and Atmospheric Administration, accompanied by Dr. Rebecca Lent, Chief, Highly Migratory Species Management Division, National Marine Fisheries Service
Prepared statement of
Delaney, Mr. Glenn Roger, Blue Water Fishermen's Association and U.S. Commissioner to ICCAT
Prepared statement of
Hayes, Mr. Robert G., General Counsel, Coastal Conservation Association, American Sportfishing Association, The Billfish Foundation
Prepared statement of
Nussman, Mr. Michael, Vice President, American Sportfishing Association
Prepared statement of
Panacek, Mr. Ernest, Manager, Viking Village Dock, Barnegat Light, New Jersey
Prepared statement of
Stone, Mr. Richard B., Science Advisor, Recreational Fishing Alliance
Page 7 PREV PAGE TOP OF DOC
Prepared statement of
Wilmot, Dr. David, Executive Director, Living Oceans Program, National Audubon Society
Prepared statement of
Additional material submitted:
Hinman, Ken, National Coalition for Marine Conservation, prepared statement of
H.R. 3331, THE ATLANTIC HIGHLY MIGRATORY SPECIES CONSERVATION ACT; H.R. 3390, THE ATLANTIC HIGHLY MIGRATORY SPECIES CONSERVATION ACT; H.R. 3516, TO PROHIBIT PELAGIC LONGLINE FISHING IN THE EXCLUSIVE ECONOMIC ZONE IN THE ATLANTIC OCEAN
TUESDAY, FEBRUARY 8, 2000
House of Representatives,
Committee on Resources,
Subcommittee on Fisheries Conservation,
Wildlife and Oceans,
Washington, DC.
The Subcommittee met, pursuant to call, at 11 a.m., in Room 1324, Longworth House Office Building, Hon. Jim Saxton [Chairman of the Committee] presiding.
STATEMENT OF HON. JIM SAXTON, A REPRESENTATIVE IN CONGRESS FROM THE STATE OF NEW JERSEY
Mr. SAXTON. The Subcommittee on Fisheries Conservation, Wildlife and Oceans will come to order. Today, the Subcommittee is conducting its first in a series of hearings concerning pelagic longline fishing in the Atlantic Ocean and the Gulf of Mexico. The focus of this hearing will be on H.R. 3331, H.R. 3390, a proposal by Congressman Porter Goss who is with us this morning, also co-sponsored by Mr. Tauzin, and H.R. 3516, a measure by Congressman Mark Sanford to prohibit pelagic longline fishing in our Atlantic Exclusive Economic Zone.
Page 8 PREV PAGE TOP OF DOC
In addition, we will examine the National Marine Fisheries Service's recommendation that time and area closures be established to address pelagic longline bycatch without compensation to pelagic longline fishermen. The National Marine Fisheries Service proposed closures are similar to those designated in two of the bills that I mentioned, but do differ in the Western Gulf of Mexico and the area off the coast of South Carolina known as the Charleston Bump.
We stand at an historic crossroads for the conservation of highly migratory species. The effective management of Atlantic highly migratory species is one of the most complex and difficult challenges facing the National Marine Fisheries Service and this Committee, I can tell you first-hand. These species range widely throughout international waters and the jurisdictions of many coastal nations with diverse political perspectives on how to properly utilize and manage this valuable resource.
The fishing practices and marketing strategies for these species are equally diverse. Unlike most other domestic fisheries, effective multilateral management is the goal of our Nation's HMS policy. In fact, Congress placed Atlantic HMS management authority in the hands of the Secretary of Commerce instead of the Regional Fishery Management Councils, in theory, to ensure that our government maintains an Atlantic-wide perspective and vision.
It is my firm belief that this Committee and this Congress, together with thousands of concerned fishermen and conservationists, have a unique opportunity to work together to aggressively protect and rebuild stocks of HMS such as billfish, sharks and swordfish.
In August of 1999, I was approached by representatives of the longline industry and three recreation/conservation fishing organizations who suggested I sponsor legislation which would do several things: (1) permanently close a vast area of U.S. waters in the South Atlantic to pelagic longline fishing; (2) establish two time-area closures in the Gulf of Mexico to pelagic longlining; (3) reduce billfish bycatch and the harvesting of juvenile swordfish; and (4) provide affected fishermen a buyout to compensate them for the loss of fishing grounds and fishing opportunities. I remain a strong supporter of this concept.
Page 9 PREV PAGE TOP OF DOC
I believe in this concept because the current management system whereby NMFS publishes a regulatory rule that is challenged by seemingly endless lawsuits is not an effective way of promoting sound HMS fishery management. This system has to change.
Frankly, I introduced H.R. 3331, in part, because the National Marine Fisheries Service established the pelagic longline fishery as a limited-entry fishery through the HMS Fishery Management Plan. As NMFS is well aware, I have been asking them to take this action for many years. The establishment of a limited-access system is critical to reduce harvesting capacity through attrition or a buyback program. Hence, once pelagic longline permits for HMS are bought out as proposed in H.R. 3331 and H.R. 3390, there would be no further vessels re-entering the fishery.
In addition, last November the International Convention for the Conservation of Atlantic Tunas, ICCAT, led by the United States, approved a 10-year rebuilding plan for North Atlantic swordfish. Although the final approved plan did not go as far as I would have liked in reducing the annual quota internationally, it nevertheless set an important tone for conservation. I commend the U.S. ICCAT Commissioners for their tenacity in getting the rebuilding plan approved.
Before we hear from out witnesses, I would like to make the following statement: Prior to and following the introduction of H.R. 3331, I and Subcommittee staff met with, and spoke to, a number of pelagic longline fishermen, recreational fishermen and their organizations, and a number of conservation and environmental groups. I am well aware of the strong opinions expressed by many on the issue of pelagic longline fishing, bycatch, and any buyback proposal. I am also very cognizant of the daily skirmishes that occur between certain commercial and recreational fishing organizations on the issue of pelagic longline fishing. I wish to remind the witnesses that this is not the proper forum for those battles. We are here to learn and then, following this learning session and perhaps several others, we will be prepared hopefully to take action.
Page 10 PREV PAGE TOP OF DOC
I would like to ask the witnesses to keep in mind that this Subcommittee is focused on producing a product that best encompasses conservation of affected highly migratory species and maintains a viable U.S. swordfish industry. This is the beginning of what I suspect will be an arduous process, but I am confident that with the input of many, we can provide a conservation measure that is good for our beleaguered highly migratory species of fish. The stakes are high and further inaction is no longer an option.
[The prepared statement of Mr. Saxton follows:]
STATEMENT OF HON. JIM SAXTON, A REPRSENTATIVE IN CONGRESS FROM THE STATE OF NEW JERSEY
Today, the Subcommittee is conducting its first in a series of hearings concerning pelagic longline fishing in the Atlantic Ocean and the Gulf of Mexico. The focus of this hearing will be my bill, H.R. 3331; H.R. 3390, a proposal by Congressmen Porter Goss and Billy Tauzin; and H.R. 3516, a measure by Congressman Mark Sanford to prohibit pelagic longline fishing in our Atlantic Exclusive Economic Zone. In addition, we will examine the National Marine Fisheries Service's (NMFS) recommendation that time and area closures be established to address pelagic longline bycatch without compensation to pelagic longline fishermen. The NMFS proposed closures are similar to those designated by H.R. 3331 and H.R. 3390.
It is my firm belief that this Committee and this Congress, together with thousands of concerned fishermen and conservationists, have a unique opportunity to work together to aggressively protect and rebuild stocks of HMS such as billfish, sharks and swordfish.
In August of 1999, I was approached by representatives of the longline industry and three recreation conservation fishing organizations who suggested I sponsor legislation to: (1) permanently close a vast area of U.S. waters in the South Atlantic to pelagic longline fishing; (2) establish two time-area closures in the Gulf of Mexico to pelagic longlining; (3) reduce billfish bycatch and the harvesting of juvenile swordfish; and (4) provide affected fishermen a buyout to compensate them for the loss of fishing grounds and fishing opportunities. I remain a strong supporter of this concept.
Page 11 PREV PAGE TOP OF DOC
I believe in this concept because the current management system whereby NMFS publishes a regulatory rule that is challenged by seemingly endless lawsuits is not an effective way of promoting sound HMS fishery management. This system has to change.
Frankly, I introduced H.R. 3331 in part, because the National Marine Fisheries Service established the pelagic longline fishery as a limited-entry fishery through the HMS Fishery Management Plan. As NMFS is well aware, I have been asking them to take this action for many years. The establishment of a limited access system is critical to reduce harvesting capacity through attrition or a buyback program. Hence, once pelagic longline permits for HMS are boughtout as proposed in H.R. 3331 and H.R. 3390, there would be no further vessels re-entering the fishery.
In addition, last November the International Convention for the Conservation of Atlantic Tunas (ICCAT), led by the United States, approved a ten-year rebuilding plan for North Atlantic swordfish. Although the final approved plan did not go as far as I would have liked in reducing the annual quota internationally, it nevertheless set an important tone for conservation. I commend the U.S. ICCAT Commissioners for their tenacity in getting the rebuilding plan approved.
Before we hear from our witnesses, I would like to make the following statement: Prior to and following the introduction of H.R. 3331, I and Subcommittee staff met with, and spoke to, a number of pelagic longline fishermen, recreational fishermen and their organizations, and a number of conservation and environmental groups. I am well aware of the strong opinions expressed by many on the issue of pelagic longline fishing, bycatch, and any buyback proposal. I am also very cognizant of the daily skirmishes that occur between certain commercial and recreational fishing organizations on the issue of pelagic longline fishing. I wish to remind the witnesses that this is not the proper forum for those battles. I would ask the witnesses to keep in mind that this Subcommittee is focused on producinga product that best encompasses conservation of affected highly migratory species and maintains a viable U.S. swordfish industry. This is the beginning of what I suspect will be an arduous process, but I am confident that with the input of many, we can provide a conservation measure that is good for our beleaguered highly migratory species of fish. The stakes are high and further inaction is no longer an option!
Page 12 PREV PAGE TOP OF DOC
Mr. SAXTON. I would now like to recognize the Ranking Minority Member for any statement he may have.
Mr. Faleomavaega.
STATEMENT OF HON. ENI F.H. FALEOMAVAEGA, A DELEGATE IN CONGRESS FROM AMERICAN SAMOA
Mr. FALEOMAVAEGA. Thank you, Mr. Chairman, and I certainly would like to welcome our good friend and colleague, the gentleman from Florida, Mr. Goss, as he will be testifying later.
Mr. Chairman, thank you for holding this hearing today on these different legislative proposals to address overfishing and bycatch concerns in the Highly Migratory Fisheries and, in particular, the swordfish industry of the Atlantic Ocean. As you mentioned earlier, Mr. Chairman, the Atlantic swordfish and other highly migratory species have been managed internationally for many years by the International Commission for the Conservation of Atlantic Tunas.
In recent years, quotas and rebuilding plans have been adopted by ICCAT to promote the recovery of swordfish which are currently over-fished. While U.S. fishermen have been strictly held to those quotas, other nations unfortunately have not been as diligent. As a result of the new bycatch reduction requirements under the Magnuson Act, additional restrictions will be needed by the U.S. fisheries. The National Marine Fisheries Service, the entity charged with management of highly migratory species, has proposed time-area closures, and these bills lay out alternatives to the NMFS approach.
I am aware that there will likely be concerns raised about Congress legislatively establishing management measures for this or any fishery, as well as concerns about other provisions to the various bills that preclude further time-area closures and require that the buyout proposals be fully appropriated before any closures can go into effect. I expect that some of the witnesses today will elaborate on those points. At the same time, Mr. Chairman, I have no doubt that your highest priority is to ensure the long-term conservation and sustainability of swordfish is, and has always been your goal, for all marine resources.
Page 13 PREV PAGE TOP OF DOC
So, with that in mind, I am here today to listen and to learn from all the witnesses in hopes that these concerns can be resolved and that we can all work together to ensure the long-term viability of this resource and the industry that depends on it.
Thank you, Mr. Chairman.
Mr. SAXTON. The gentleman from New Jersey, Mr. Pallone.
STATEMENT OF FRANK PALLONE, JR., A REPRESENTATIVE IN CONGRESS FROM THE STATE OF NEW JERSEY
Mr. PALLONE. Thank you, Mr. Chairman. I am pleased that this important issue, conserving the Atlantic highly migratory species, is now being considered by your Subcommittee. Today, we are contemplating various proposals designed to preserve highly migratory species of fish in the Atlantic to reduce bycatch of over-fished and protected species, and to minimize the economic impacts on affected commercial fishermen. These proposals all close geographic areas for certain periods of time to commercial pelagic longline fishing, providing a new and ambitious management strategy to reduce incidental catch of undersized, overfished, and protected species.
The geographic extent of the closure should correspond to hotspots where the species to be conserved and protected are most likely to be otherwise caught. But because it is a new strategy, significant questions remain concerning the effect time-area closures will have on both fishing effort and obviously on fishing communities.
It is obviously a difficult issue, you can tell that from what the Chairman has already said. The negotiations process has come far in the past few weeks, but we still have a long way to go, and I look forward to working with scientists, recreational and commercial fishermen, and the conservationists, to find an effective solution for all, and basically will be listening to the testimony today and talking again to some of the affected parties in New Jersey as well as throughout the country. Thank you, Mr. Chairman.
Page 14 PREV PAGE TOP OF DOC
Mr. SAXTON. Thank you. Before we proceed, let me ask unanimous consent that also Committee members be permitted to include their opening statements in the record.
Before we move to Mr. Goss, it has been mentioned by myself and by my two colleagues that certain areas would be closed to longline fishing, and I would like to ask Mr. Howarth if he would explain the differences in these lines to the Committee members and to members of the public.
Mr. HOWARTH. Thank you, Mr. Chairman. I will be very brief. Members, in your folders, behind your background memo, are copies of these maps. There are charts to the left for the witnesses and charts to the right for members. On the maps are a series of lines. The one farthest south from the Gulf that is yellow and black represents the EEZ. That represents the EEZ as well as Mr. Sanford's bill banning pelagic longline fishing in the Atlantic EEZ.
The green line in the Western Gulf represents the NMFS proposal for the Gulf of Mexico.
The blue and red line in the Gulf closer to the shore represents Mr. Saxton's bill and Mr. Goss' bill. In the Atlantic, the lines blue and red, going up the East Coast, represent again Mr. Saxton and Mr. Goss' proposals. Also, you will see in the Atlantic a green line. That represents the Charleston Bump that you heard in the Chairman's testimony, and that is from the NMFS proposal.
This map here on the dais and the map over there represent the same picture. Out to the witnesses' left and the members' right represents the Mid-Atlantic. Again, the black and the yellow line represents the EEZ, the Exclusive Economic Zone, and the red line represents Mr. Saxton's proposal of the Mid-Atlantic buyout area. Thank you.
Mr. SAXTON. Well, that certainly cleared that up.
Page 15 PREV PAGE TOP OF DOC
I am very pleased to have our friend and colleague from the State of Florida here with us today, Mr. Goss, who is the sponsor of H.R. 3390.
Mr. Goss, we are pleased that you are here. You may proceed as you see fit.
STATEMENT OF HON. PORTER J. GOSS, A REPRESENTATIVE IN CONGRESS FROM THE STATE OF FLORIDA
Mr. GOSS. Thank you. I am obviously glad to be here, too, on this occasion, and I very much appreciate your leadership and the interest of the members of your Subcommittee on this subject. It is a matter clearly to say whose time has come is well understood. I have a prepared statement which I would like to submit for the record, and I would like to abbreviate it and just make a few points, if that is permitted.
First of all, I am very happy that my lead co-sponsor on H.R. 3390, which is the bill which I wish to address, is our colleague from Louisiana, Mr. Tauzin, who is well known and has been long involved in dealing with these fishery matters.
H.R. 3390, as we are presenting it, is a legislative embodiment of an agreement between the commercial fishing industry and conservation groups to close, as the map shows, some 160,000 square miles to pelagic longlining in the South Atlantic and the Gulf of Mexico.
The bill is a compromise that came about after extensive negotiation. It is the compromise that now exists, and I think it represents a win for all parties, which is why the bill is brought forward.
As you have described, or as your staff has described, the bill affects an area from Sanibel, roughly, on the west coast of Florida, down around the tip of Florida, up the South Carolina coast.
Page 16 PREV PAGE TOP OF DOC
The areas selected for closure were chosen because the scientific analysis done by NMFS and independent scientists because they have high concentrations of small swordfish bycatch and billfish bycatch. Closing them should allow these stocks to rebound without unduly disrupting the swordfish longlining industry, and that, I think, is the basis of the compromise.
In addition, the 68 longlining vessels that use these fisheries will be bought out by the government. In return, these vessels are not going to go back into that fishery or other commercial fisheries.
Payment for the buyout in our bill comes from a combination of Treasury funds, consumers of swordfish, and a user fee in fact imposed on recreational fishermen.
The bill does include a bycatch reduction research program. This effort is designed to help develop measurable methods to further reduce bycatch. This is an area I have been particularly interested, as the Chairman well knows, and I think follows on the gentleman from New Jersey, Mr. Pallone's, remarks as well.
I also want to point out that a lot of interested parties have come forward on this on both sides and, frankly, I have had a lot of time to work with the Coastal Conservation Association, and I very much appreciate the CCA efforts and take on this and some other matters over the years.
I know, Mr. Chairman, that you would like to expand the closed fisheries area and that you have legislation to do that, and I very much congratulate you on that effort. I am hopeful that that process will move forward in a smooth way legislatively, at the same time not losing anything that we have achieved so far, as reflected in H.R. 3390, the base bill compromise which we are trying to get passed.
I think that this is a unique time, that we have seen, finally, in these wars that go on, an area where people have come together and sat down and worked out an agreement. I think in that case this is somewhat benchmark, and I genuinely would like to thank all the parties involved on both sides of the issue for rationally trying to find a solution that is based on science and is also based on fair play and comes up with a piece of legislation which I think our colleagues would be able to support.
Page 17 PREV PAGE TOP OF DOC
Having said that, I would also like to thank Mr. Faleomavaega for his kind reception and hospitality here, and to tell him also that he was well represented by M/Sgt. Totela Alefonga [phonetic] in American Samoa at the occasion of my recent visit there, where I learned something about the problems of the fisheries in that area first-hand. And I wish he would give my best wishes to M/Sgt. Totela Alefonga, and be assured, Mr. Faleomavaega, that you were well represented. Thank you, Mr. Chairman, that is all I have to offer at this time. I would be happy to answer any questions.
[The prepared statement of Mr. Goss follows:]
STATEMENT OF HON. PORTER GOSS, A REPRESENTATIVE IN CONGRESS FROM THE STATE OF FLORIDA
Mr. Chairman, I am pleased to be here this morning to discuss H.R. 3390, the Atlantic Highly Migratory Species Conservation Act. For me, this bill is an excellent model for how conservation issues should be addressed. Unfortunately, as my colleagues well know, most environmental debates are often politicized for partisan gain and have little to do with substance or solutions. It is not often that combatants in conservation issues can put aside their differences long enough to come to a consensus agreement that will benefit both parties and ensure meaningful protection for our resources. So, I am delighted to be here today with what I hope is a constructive solution to a very real problem. The consensus reflected in H.R. 3390 will greatly enhance the conservation of billfishes and facilitate rebuilding of the swordfish stocks.
In the fall of 1998, representatives of four groups began a discussion that has resulted in the bill I introduced. The Coastal Conservation Association, the American Sportfishing Association, The Billfish Foundation and the Blue Water Fisherman's Association have come together to address the decline of Atlantic billfishes and the increase in catches of juvenile swordfish.
H.R. 3390 will close some 160,000 square miles to pelagic longlining in the South Atlantic and the Gulf of Mexico. These closures, developed from scientific analysis done by independent scientists and the National Marine Fisheries Service, cover a broad spectrum of conservation benefits without unduly disrupting the swordfish longlining industry. The areas were selected because of the high concentration of small swordfish catch and billfish by-catch.
Page 18 PREV PAGE TOP OF DOC
The Atlantic closed area extends from my Southwest Florida district at Sanibel Island south to Key West, then north all the way to the South Carolina North Carolina boarder. This area will produce the lion's share of the conservation and economic benefit from this bill. The closure is permanent and will significantly reduce the catch of small swordfish and sailfish byeatch. Portions of the Gulf will see a three-month closure that accomplishes similar objectives.
Although no one has computed the exact economic benefit of the legislation, there is no question that it will be a huge boost for the economy of my home state of Florida and, ultimately, the nation. Florida is the number one marine recreational fishing state in the country. That activity cannot be sustained without healthy populations of fish. The benefits from the Atlantic closure will make the East Coast of Florida one of the premier sailfish fisheries in the world.
These benefits do not come without a cost, however. In order to get this level of economic and conservation benefit, the legislation makes 68 longline vessels eligible for buy-out of the vessel's fishing permits. In return for the buy-out, the longlining vessels are forever foreclosed from returning to this fishery or any other commercial fishing worldwide. Payment for the buyout comes from a combination off Treasury funds, consumers of swordfish and a fee imposed on recreational fishermen.
The legislation also includes a bycatch reduction research program. The three-year program will direct scientists, sponsored by both the commercial industry and recreational groups, to develop measurable methods to further reduce bycatch in the longline fishery. There is a special emphasis in the mid-Atlantic to monitor displacement of vessels and propose ways to remedy it.
I said earlier that the bill is not perfect. Indeed, I have yet to see a perfect piece of legislation. No group is going to get all they want in this legislation but, taken as a whole, this is a good piece of legislation that addresses a real conservation problem. We should not pass up this opportunity.
Page 19 PREV PAGE TOP OF DOC
I commend the groups that have signed the agreement and I am particularly proud to sponsor this legislation because of my respect for the work of the Coastal Conservation Association. In my state of Florida, CCA has always led the charge in the fight to protect our marine resources and I am pleased to see that commendable record of accomplishment continue.
Mr. Chairman, I know that you have legislation that would expand the buyout area envisioned in H.R. 3390. I commend you for that effort. I remain hopeful that throughout the legislative process as we move this bill toward passage, we will maintain the delicately balanced compromise that produced the agreement to close these fisheries.
Once again, I want to thank the Chairman and the other members of the Committee for the opportunity to appear before you this morning. Thank you.
Mr. SAXTON. Thank you very much for your statement and for your brevity, it is appreciated. I would just like to get one issue out on the table while you are here, and that is this: The area that you and I close are identical in our bills. The uppermost concern in the mind of many is that we have no way of knowing how many longline fishermen or fisherboats which are currently ported, docked, in or adjacent to the closed area, would opt to be bought out under the proposal, and how many would opt to go fish somewhere else.
As a Representative of the middle Atlantic States, New Jersey in particular, we have some concern that without some provisions added to your bill, as is currently represented by some provisions in my bill, to address the issue referred to as ''displacement of fishermen'', that many of the boats might, could, or would, move north, simply moving the fishing effort from the closed area to the area that would remain open, commonly referred to in these discussions as the mid-Atlantic Bight.
I am just interested in your thoughts on this issue because somehow, if we are going to be successful in getting a bill, we need to find a solution to this problem, and I am just interested in your comments.
Page 20 PREV PAGE TOP OF DOC
Mr. GOSS. Mr. Chairman, as I said, I congratulate you on your efforts to do that because I think fair play is a critical factor in any piece of legislation, and I don't think we really entirely understand all the consequences of any legislation we pass.
What I seek to do is to bring forward a slice of this problem that I am pretty sure would be noncontroversial as it stands by itself because that is what the parties have agreed to.
Do I think this is final solution, the only solution, the best solution? No, it is not. It is what we have got so far. And if it can be improved and made fairer, specifically referring to the displacement issue, that is certainly fine by me. It is not my view that we want to in any way be unfair, but it is certainly my view that we have to have agreement among the parties in order to pass workable legislation, and that is why I brought forward H.R. 3390 in its present form. If you could improve upon it, you will certainly have my support in any way I can.
Displacement of fishermen is a huge problem. The industry has obviously undergone some very serious readjustment. I know, with Mr. Faleomavaega, we have talked a lot about porpoises and tuna and so forth, and dealing with environmental approaches. And I find that rational people sitting down and negotiating these things out on the basis of good science and fair play is the best way to come to a reasonable solution. I think that this first step today legislatively opens the door for more of the same, and so I have nothing but encouragement for people who are going to try and make a better bill, a fairer bill, if it is possible to do, with the consent of all parties.
Mr. SAXTON. Thank you very much. Mr.Faleomavaega.
Mr. FALEOMAVAEGA. Thank you, Mr. Chairman, and again I want to assure the gentleman that certainly this Member will definitely be seeking his advice and his wisdom and understanding of the complications involved here. This is just with the Atlantic. It is just as much similar problems that we're faced with in the Pacific, and probably to the uniqueness of our Nation, the fact is not only as an Atlantic nation but as a Pacific nation. But I do want to thank the gentleman for coming up with his initiative so that the members of this Subcommittee will certainly be aware of the concerns that have been addressed by the provisions of H.R. 3390. I want to assure the gentleman that I will be closely working with him to see what we can do to improve this legislation. Thank you, Mr. Chairman.
Page 21 PREV PAGE TOP OF DOC
Mr. SAXTON. Mr. Goss, thank you very much, we appreciate your being with us this morning. At this time, we have no further questions.
Mr. GOSS. Thank you, Mr. Chairman. I have always been hospitably welcomed here, and I appreciate it. It is a pleasure to do business with your Subcommittee and its members.
Mr. SAXTON. Thank you very much.
I would now like to move on to our next panel. I would now like to introduce Ms. Penny Dalton, Assistant Administrator for Fisheries at the National Marine Fisheries Service. I would like to remind the witness that we operate here under the five-minute rule, which is sometimes flexible. Your written testimony certainly will be included in its entirety in the record and, Penny, you can begin when you are comfortable.
STATEMENT OF PENELOPE DALTON, ASSISTANT ADMINISTRATOR FOR FISHERIES, NATIONAL MARINE FISHERIES SERVICE, NATIONAL OCEANIC AND ATMOSPHERIC ADMINISTRATION, ACCOMPANIED BY DR. REBECCA LENT, CHIEF, HIGHLY MIGRATORY SPECIES MANAGEMENT DIVISION, NATIONAL MARINE FISHERIES SERVICE
Ms. DALTON. Good morning, Mr. Chairman and members of the Subcommittee. I am Penny Dalton, NOAA Assistant Administrator for Fisheries. Accompanying me today is Dr. Rebecca Lent. She is the Chief for our Highly Migratory Species Management Division.
Thank you for the opportunity to testify today on three legislative proposals before the Subcommittee: H.R. 3331 and H.R. 3390, both titled the Atlantic Highly Migratory Species Conservation Act; and H.R. 3516, legislation to prohibit pelagic longline fishing in the Exclusive Economic Zone in the Atlantic Ocean. I also will discuss our December 15 Rule proposing establishment of time and area closures for the longline fleet to reduce bycatch.
Mr. Chairman, my written testimony provides a detailed review of the proposed Rule and the three bills. In the interest of time, I will briefly compare the Rule and the legislation and then discuss our analysis and conclusions.
Page 22 PREV PAGE TOP OF DOC
The proposed Rule includes as a preferred alternative a year-round closure of the Southeast Atlantic Coast and a seven-month closure, from March 1 to September 30th, in the Western Gulf of Mexico. In selecting this preferred alternative, NOAA Fisheries examined several options and balanced the need to (1) reduce bycatch of small swordfish, also billfish, bluefin tuna and sharks, and (2) minimize reductions in target catches.
NOAA Fisheries has published a Proposed Rule and a 75-day comment period currently is underway, which will end on March 1, 2000. Once the comments have been compiled and considered, NOAA Fisheries will complete action on the Final Rule. Similar areas are proposed for closure in the Rule, H.R. 3331 and H.R. 3390, albeit with some important differences. The South Atlantic Bight closure in the Proposed Rule is larger on the northern end to account for the variable location of the oceanographic feature known as the Charleston Bump. In addition, the Proposed Rule would close the Western end of the Gulf which is different from the legislative proposals to close an area all along the Northern Gulf Coast.
NOAA Fisheries has only recently begun to use time and area closures as a management tool for this fishery. Analyzing the impacts and effectiveness that time and area closures on the Atlantic pelagic longline fleet has proven to be challenging because it is difficult to predict changes in fishing patterns when the areas are closed.
To examine a range of possibilities, NOAA Fisheries conducted analyses under two different assumptions regarding the fishermen's behavior. The first assumption is that there would be zero-effort redistribution. In other words, sets currently made in the proposed closed areas would not be made elsewhere.
The second assumption is that there would be a total effort redistribution. That is, all of the sets currently made by fishermen in the proposed closed areas would be made in other open areas.
The benefits from the time and area closures under the two effort redistribution models have been evaluated for the Proposed Rule and for both bills. A comparison of the effectiveness of all the proposals is shown in the attached table at the end of my written testimony.
Page 23 PREV PAGE TOP OF DOC
In the South Atlantic, the impact of time and area closures under the Proposed Rule is similar to that for the bills under both models. In the Gulf of Mexico, the time and area closures in the Proposed Rule may be more effective at reducing billfish bycatch than the proposals in the bill, again, under both effort and redistribution scenarios. For both the Proposed Rule and the legislative proposals, the net effects will likely be somewhere between zero and total displacement, although the buyback program proposed in the bills would be likely to reduce displaced effort.
Our analyses shows that there are benefits from time and area closures even if effort is displaced at the same time our analyses indicated that the extent of the socio-economic impacts associated with the Proposed Rule and the need to consider mitigating measures such as the buyout. The economic and community effects of the Proposed Rule may be substantial. Losses in gross revenues to fishing vessels could be as high as $14 million per year. And an examination of individual vessel records indicate that up to 20 percent of the vessels could lose half of their gross income.
In addition, swordfish dealers could face substantial reductions in the total weight of fishes they handle. Comments at public hearings indicate that the effects would not be confined to the pelagic longline fishery. Processors and small businesses supplying the fleet with bait, ice and other provisions would also be affected.
Finally, for those vessel operators remaining in the fishery, fishing cost could increase if vessels must go further offshore or relocate as a result of closures.
Overall, NOAA Fisheries supports the intent of H.R. 3331 and H.R. 3390 to address bycatch concerns in the pelagic longline fishery and to reduce overcapacity and economic disruptions that result.
We would like to work with you to deal with certain provisions of the legislation that we cannot support as they currently are drafted.
Page 24 PREV PAGE TOP OF DOC
While we are still completing our legislative analyses, we would like to point out two specific areas of concern. As we mentioned before, the impact of a time and area closure is difficult to predict. However, we do believe that there will be some redistribution of effort, possibly into areas with higher turtle or mammal bycatch. As introduced, the bills currently do not provide NOAA Fisheries to address increased turtle or marine mammal bycatch or other potential conversation issues in the remaining open areas.
We would be supportive of an industry-funded buyout, however, the cost associated with the implementation of the buyout must be considered. We have limited administrative resources to collect fees from wholesalers and recreational fishermen. NOAA Fisheries also lacks funds to pay for the BMS units and this would set an adverse precedent for other fisheries.
In addition, we would like to see increased flexibility with respect to implementing the buyout program and other provisions of the legislation if only partial funding is available.
We recognize the enormous effort and unprecedented collaboration between commercial fishermen and marine anglers in developing these legislative proposals. We applaud the efforts of the sponsors to meet the conservation requirements and minimize adverse impacts on displaced fishermen. I look forward to working with you to address our concerns and to enacting legislation that we can fully support.
[The prepared statement of Ms. Dalton follows:]
STATEMENT OF PENELOPE D. DALTON, ASSISTANT ADMINISTRATOR FOR FISHERIES, NATIONAL MARINE FISHERIES SERVICE, NATIONAL OCEANIC AND ATMOSPHERIC ADMINISTRATION, U.S. DEPARTMENT OF COMMERCE
Good morning, Mr. Chairman and members of the Subcommittee. I am Penny Dalton, Assistant Administrator for Fisheries of the National Oceanic and Atmospheric Administration. Thank you for the opportunity to testify today on three legislative proposals before the Subcommittee: H.R. 3331 and H.R. 3390, both titled the Atlantic Highly Migratory Species Conservation Act; and H.R. 3516, legislation to prohibit pelagic longline fishing in the Exclusive Economic Zone in the Atlantic Ocean.
Page 25 PREV PAGE TOP OF DOC
DOMESTIC AND INTERNATIONAL MANAGEMENT OF ATLANTIC HIGHLY MIGRATORY SPECIES
Atlantic highly migratory species (HMS), such as swordfish, tunas, billfish, and sharks, range throughout tropical and temperate oceans and include some of the world's largest and most valuable fish. They are sought after by commercial fishermen and prized by sport anglers. In addition, HMS conservation and management has attracted considerable interest by the environmental community and the general public. Total commercial landings of Atlantic HMS in 1998 were over 15 thousand metric tons (mt), and the ex-vessel value was over $70 million. Expenditures in recreational fisheries for highly migratory species are in the hundreds of millions of dollars.
Since the early 1990s, Atlantic HMS have been managed directly by the Secretary of Commerce, primarily because the range of these species extends over five regional fishery management council areas. Secretarial management also eases U.S. participation in international HMS conservation programs and establishment and negotiation of U.S. positions at meetings of the International Commission for the Conservation of Atlantic Tunas (ICCAT), the 28-member organization charged with overseeing the science and management of tunas and tuna-like species.
Atlantic swordfish are harvested by a number of nations and currently are designated by ICCAT as overfished. The annual U.S. share of landings from the North Atlantic swordfish stock is only about 25 percent of the total harvest. Consequently, we must work with other nations to eliminate overfishing and rebuild the swordfish stock. Through ICCAT, we have worked to achieve international cooperation and adequate monitoring and compliance. The United States plays a key role in encouraging multilateral management measures for swordfish as well as other ICCAT species. At the recent ICCAT meeting in Rio de Janeiro, the Commission adopted a number of actions to strengthen international conservation efforts. Most notably, ICCAT nations committed to a 10-year rebuilding program for swordfish. While the rebuilding program requires only slight reductions in total quotas over the next three years (approximately 15 percent), the agreement counts all the harvest, including discards of dead swordfish, against the total allowable catch for the first time. Counting dead discards against the total quota could be an important additional incentive for fishermen to avoid catching undersized swordfish.
Page 26 PREV PAGE TOP OF DOC
Our progress on the international front would not have been possible without the strong support of U.S. commercial and recreational fishermen, environmental groups and others. Pelagic longline fishermen were very supportive of the rebuilding program, despite the reductions in their landings that the program would entail. Responding to concern over the catch and harvest of undersized swordfish, the United States also was successful in sponsoring a resolution that called for ICCAT to analyze and consider the use of time and area closures throughout the Atlantic. Finally, I would like to note that ICCAT adopted a binding recommendation that countries ban the imports of Atlantic swordfish from Belize and Honduras.
Consistent with our ICCAT responsibilities, the Magnuson-Stevens Fishery Conservation and Management Act (Magnuson-Stevens Act) requires that NOAA Fisheries take action to manage the fishery within U.S. waters. Two years ago, NOAA Fisheries established advisory panels under new provisions of the Magnuson-Stevens Act. With the assistance of these panels, in April 1999 NOAA Fisheries completed a new HMS fishery management plan (HMS Plan) and amended an existing fishery management plan for billfish. These new plans were among the first to be implemented under the new requirements of the Magnuson-Stevens Act and included management measures to identify and rebuild overfished HMS stocks, minimize bycatch, limit access to the pelagic longline fishery for HMS, and address socioeconomic impacts on fishermen and their communities.
Pelagic longlines are the primary commercial gear type in the HMS fisheries of the Atlantic, including the Gulf of Mexico and Caribbean. The longline fishery thus provides an important source of seafood for the American consumer. However, like most types of fishing gear, it unintentionally catches species and sizes of fish that, for reason of regulation or economic choice, are thrown back into the sea. Some of this bycatch can be released alive, but significant amounts are discarded dead. While dead discards in the pelagic longline fishery have declined over the past decade, concerns remain about bycatch levels, particularly of juvenile swordfish, billfish, bluefin tuna, and sharks. In addition, NOAA Fisheries must address the incidental catch of endangered species such as sea turtles. Over the past three years an average of 487 mt of Atlantic swordfish (about 13 percent of the total catch) and an average of 58 mt of bluefin tuna (just over 4 percent of the total of the bluefin fishery) were discarded dead.
Page 27 PREV PAGE TOP OF DOC
The Magnuson-Stevens Act requires that bycatch be minimized or avoided to the extent practicable. The draft HMS Plan released in October 1998 addressed this requirement by proposing a number of measures, including time and area closures for pelagic longline gear designed to reduce bycatch of bluefin tuna, juvenile swordfish, and billfish. Initial analyses focused on areas with high discards of juvenile swordfish and bluefin tuna based on logbook data submitted by fishermen. They led to a proposal for a June closure off the mid-Atlantic Bight to protect bluefin tuna and a closure in the Florida Straits to protect small swordfish. During the public review process, NOAA Fisheries received comments from recreational and environmental constituents, as well as some commercial constituents, that the proposed Florida Straits area was too small to be effective. Consequently, the final HMS Plan included a mid-Atlantic Bight closure but did not include the proposed closure for the Florida Straits. When the HMS Plan was published, NOAA Fisheries made a commitment to develop a new proposal to reduce swordfish bycatch, including time and area closures, before the end of 1999.
To fulfill this commitnent, NOAA initiated additional—and more extensive—analyses of logbook data in May 1999. The results of these analyses were shared with HMS Advisory Panel members at a joint meeting in June 1999. At the same meeting, a coalition of recreational and commercial fishing interests discussed their efforts to develop a legislative package that would include both time and area closures and a program to buy back Federal permits of longline fishermen affected by the closures.
Shortly after the June meeting of the HMS advisory panel, NOAA Fisheries was sued by a number of environmental groups on the grounds that the HMS Plan failed to adequately reduce bycatch. However, the parties agreed to a stay until May 1, 2000 of further proceedings in the litigation pending continued progress in developing a new regulation to address bycatch.
NOAA Fisheries completed its additional analyses and released a draft technical memorandum in October 1999. This technical memorandum was sent to advisory panel members and the five regional fishery management councils and to the general public upon request. On November 2, 1999, NOAA Fisheries published a notice of intent to prepare an environmental impact statement, and announced the availability of the technical memorandum. In this same Federal Register notice, the agency indicated that a proposed-rule on time and area closures would be published by December 15, 1999, and a final rule by May 1, 2000.
Page 28 PREV PAGE TOP OF DOC
NOAA Fisheries has published the proposed rule, and a 75-day comment period is currently underway which will end on March 1, 2000. During the comment period, NOAA Fisheries will conduct 15 public hearings throughout the HMS management region, including coastal communities within and outside of the proposed closed areas. Once the comments have been compiled and considered, NOAA Fisheries will consider management options for the final rule.
The proposed rule includes as a preferred alternative a year-round closure off the southeast Atlantic coast and a 7-month closure (March 1–September 30) in the western Gulf of Mexico. In selecting this preferred alternative, NOAA Fisheries examined several options, balancing the need to: (1) reduce bycatch of undersized swordfish, billfish, bluefin tuna, and sharks; (2) minimize reductions in target catches; and (3) minimize the effect on other fisheries.
LEGISLATIVE PROPOSALS
Three bills currently are pending in the House of Representatives that address pelagic longlining: H.R. 3331, introduced by Rep. Saxton; H.R. 3390, introduced by Rep. Goss and Rep. Tauzin; and H.R. 3516, introduced by Rep. Sanford.
H.R. 3331 and H.R. 3390 are very similar to each other. There are some differences, however, primarily related to longlining in the mid-Atlantic Bight. Both bills would establish: (1) a year-round closure to pelagic longline fishing in the South Atlantic seaward of the coast from the northern South Carolina boundary to Key West, Florida; (2) two seasonal closures in the Gulf of Mexico (an area in the northeastern Gulf of Mexico from January 1st to Memorial Day each year and a closure seaward of the coast from Mexico to the Florida Panhandle that will be closed from Memorial Day to Labor Day of each year for five years); and (3) a voluntary program to buy out the longline permits of 68 named longline commercial vessels ''through a partnership of the recreational and commercial fishing industries and Federal funds.'' All vessels that participate in the buyout program would be required to surrender all commercial fishing permits. The two bills also direct NOAA Fisheries to conduct a research program, identifying and testing the most effective fishto reduce the billfish bycatch in the Atlantic and Gulf of Mexico. In addition to the measures above, H.R. 3331 also amends the Atlantic Tunas Convention Act to allow the Secretary of Commerce to reduce swordfish quotas below ICCAT recommendations, restricts effort increases on longliners fishing in the Mid-Atlantic Bight, and creates a second voluntary vessel buyout category for mid-Atlantic Bight commercial longline fishermen.
Page 29 PREV PAGE TOP OF DOC
H.R. 3516 would amend the Magnuson-Stevens Act to prohibit ''pelagic longline fishing in the exclusive economic zone in the Atlantic Ocean.'' It does not include a buyout as contained in H.R. 3331 or H.R. 3390. In the past, NOAA Fisheries has not supported unilateral bans on specific gear types, other than destructive fishing practices such as large-scale pelagic driftnets.
Similar areas are proposed for closure in the rule and the two bills, albeit with some important differences. The South Atlantic Bight closure in the proposed rule is larger on the northern end to account for the variable location of the oceanographic feature of the Charleston Bump. In addition, the proposed rule would close the western end of the Gulf, which is different from the legislative proposals to close an area along the northern Gulf coast.
ANALYSES OF PROPOSED CLOSED AREAS
NOAA Fisheries has only recently begun to use time and area closures as a management tool for this fishery (i.e., the June closure in the mid-Atlantic Bight to protect bluefin tuna). Analyzing the impacts and effectiveness of time and area closures on the Atlantic pelagic longline fleet has proven to be challenging because it is difficult to predict changes in fishing patterns when the areas are closed. To examine a range of possibilities, NOAA Fisheries conducted analyses under two different assumptions regarding the fishermen's behavior. The biological and socioeconomic effects of the various alternatives then were compared using these different assumptions.
The first assumption is that there would be zero effort redistribution, i.e., the sets currently made in the proposed closed areas would not be made elsewhere. This assumption provides estimates of the maximum reduction in bycatch and landings of target species, as well as the maximum social and economic effects of the proposed time and area closures.
Page 30 PREV PAGE TOP OF DOC
The second assumption is that there would be a total effort redistribution, i.e., the sets currently made in the proposed closed areas would be made in other, open areas (distributed proportionately to historic effort in the remaining open areas). This assumption provides an estimate of the minimum expected reduction in bycatch, because fishing effort would reoccur somewhere else. This scenario also provides a minimal estimate of the possible social and economic impacts of the proposed time and area closure. The benefits from the time and area closures under the two effort redistribution models have been evaluated for the proposed rule and for both H.R. 3331 and H.R. 3390. Because the areas proposed in the proposed rule and the legislation are similar, bycatch reduction benefits are likely to be similar. A comparison of the effectiveness of all of the proposals is shown in the attached table. These estimates may differ from those provided by proponents of the legislation because the analyses on which the legislative proposals are based were conducted independently and assume zero effort redistribution.
In the South Atlantic, the impact of time and area closures is similar to that for the bills under both no effort redistribution and total effort redistribution. In the Gulf of Mexico, the time and area closures in the proposed rule may be more effective at reducing billfish bycatch than the proposals in the bill, again under both effort redistribution scenarios.
For both the proposed rule and the legislative proposals, the net effects will likely be somewhere between the zero displacement and the total displacement, although the buyback program proposed in the bills would be likely to reduce displaced effort. On the other hand, vessels remaining in the fishery could become more active and make more sets in the open fishing areas. Although limited access is in place in the HMS pelagic longline fishery, there is no limit on effort in the form of days fished, number of sets, length of the line, or number of hooks. However, reduced ICCAT quotas for swordfish, and the further reductions engendered by the dead discards provisions, should limit the expansion of effort by the vessels remaining in the fleet.
Page 31 PREV PAGE TOP OF DOC
These analyses provide an estimate of the range of potential benefits and costs of time and area closures. The biological and economic analyses conducted for the rulemaking will be very useful for assessing legislative options for a buyout. Our analyses show that there are benefits from time and area closures even if effort is displaced. At the same time, our analyses demonstrate the extent of socioeconomic effects associated with the proposed rule, and the need to consider mitigating measures, such as a buyout.
The economic and community effects of the proposed rule may be substantial. Losses in gross revenues to fishing vessels could be as high as $14 million per year, and examination of individual vessel records indicates that up to 20 percent of the vessels could lose half their gross income. In addition, swordfish dealers could face substantial reductions in the total weight of fish they handle. Comments at public hearings indicate that the effects would not be confined to the pelagic longline fishery; processors and small businesses supplying the fleet with bait, ice, and other provisions also would be affected. Finally, for those vessel operators remaining in the fishery, fishing costs could increase if vessels must go farther offshore or relocate as a result of closures.
CONCLUSIONS
Overall, NOAA Fisheries supports the intent of H.R. 3331 and H.R. 3390, which is to address bycatch concerns in the pelagic longline fishery and to reduce overcapacity and economic disruptions that result.
We would like to work with you to deal with certain provisions of the legislation that we cannot support as they are currently drafted. While we are still completing our legislative analysis, we would like to point out two specific areas of concern. As has been mentioned before, the impact of a time and area closure is difficult to predict. However, we do believe that there will be some redistribution of effort, possibly into areas with higher turtle or mammal bycatch. As introduced, the bills currently do not provide NOAA Fisheries with the flexibility to address increased turtle or marine mammal bycatch or other potential conservation issues in the remaining open areas. We currently are reviewing possible mitigating measures in the event that turtle or marine mammal bycatch increases as a result of closed areas.
Page 32 PREV PAGE TOP OF DOC
We are supportive of an industry-funded buyout. However, the costs associated with the implementation of the buyout must be considered. The collection of fees from wholesalers and recreational fishery participants is labor intensive and requires administrative funds. Current fishery management responsibilities are already curtailed due to limited personnel and financial resources. It would be particularly difficult for NOAA Fisheries to fund vessel monitoring systems, and this would set a precedent that we would be unable to meet in other fisheries. In addition, we would like to see increased flexibility with respect to implementing the buyout program and other provisions of the legislation if only partial funding is available.
We recognize the enormous effort and unprecedented collaboration between commercial fishermen and marine anglers in developing these legislative proposals. We applaud the efforts of the sponsors to meet conservation requirements and minimize adverse impacts on displaced fishermen. I look forward to working with you to address our concerns and to enacting legislation that we can fully support.
Mr. SAXTON. Thank you very much. Let me just suggest to my two colleagues, as we move through this, if you have a question during the time that either myself of Mr. Faleomavaega have time, please just jump in.
Let me begin by asking you, what were the driving or determining factors in helping you to reach a decision where your proposed area boundaries would be located?
Ms. DALTON. In the Proposed Rule that we did to implement the HMS plan, we had a small area that we proposed for closure off the Florida Straits. During the public comment period on that Rule, we got a number of comments that the area was not adequate, that it was not large enough, that it actually could exacerbate bycatch problems.
So, when we did the Final Rule to implement the plan, we made a commitment that we would do some additional analyses and develop a new Proposed Rule. This Proposed Rule that we put out on December 15th was as a result of those additional analyses.
Page 33 PREV PAGE TOP OF DOC
Mr. SAXTON. I have heard the term ''nursery areas'' used, I have heard the discussions about where juvenile swordfish are found. Can you discuss those issues with us at this time?
Ms. DALTON. Basically, what we did is we used the logbook information from the fleet—and Rebecca will correct me if I make a mistake here—but to look at what we were essentially hotspots for bycatch of the species of concern. And, generally, for swordfish, that is along the South Atlantic Bight and for billfish you have higher concentrations of bycatch in the Gulf. And using that logbook information then we tried different scenarios of closing different areas to see where we could maximize the reduction of bycatch and also minimize the reductions in directed swordfish harvest.
Mr. SAXTON. And, therefore, you believe that the areas that you have outlined would be the most beneficial from a conservation point of view?
Ms. DALTON. It is actually very hard—if you look at the table that is at the end of the testimony, you will see that there is a pretty significant range of potential reductions. Part of the problem is that it is difficult to deal with the issue of displacement, and depending on what you assume happens with displacement, you change what your potential conservation benefits are.
Mr. SAXTON. Mr. Goss and I have both introduced bills with areas that are substantially different than the areas that you propose to close, is that right?
Ms. DALTON. Yes, for the Gulf—it is actually fairly small for the South Atlantic.
Mr. SAXTON. Okay, let us talk about the Gulf. I am trying to figure out the rationale that you used that is different than the rationale that the people who negotiated this area to be closed. What is the difference in our approach. Why don't you like our approach in the Gulf?
Page 34 PREV PAGE TOP OF DOC
Ms. DALTON. In the Eastern Gulf, at least based on the data that we have, there is less bycatch of billfish species than there is in the area further south that we closed. The good thing about the proposal that you came up with legislatively is that there obviously is going to be a problem with displacement in the Gulf.
Mr. SAXTON. The displacement would be greater with your approach?
Ms. DALTON. Well, it is going to be probably greater in the Eastern Gulf. You have closed the Eastern Gulf for that period of time in your bill. We haven't closed the Eastern Gulf, so what you are probably going to end up have happening is you are going to have the displacement right to the Eastern part of the closed area.
Mr. SAXTON. You were somewhat uncertain in your statement about the degree to which displacement might be a problem, is that correct?
Ms. DALTON. Yes.
Mr. SAXTON. Is that because we don't know which fishermen might choose to just go out of business—forgetting about the bill for a minute—there is no compensation, obviously, in your closure plan, so you would assume that some fishermen would choose to no longer fish and that some might choose to fish elsewhere, perhaps in the Eastern Gulf, is that right?
Ms. DALTON. Yes.
Mr. SAXTON. Have you done any research whatsoever—I am not asking this in a critical way, I am just asking for information purposes for the record—is there any way of having a guesstimate that without compensation so many boats would stop fishing and other boats would fish elsewhere?
Ms. DALTON. No. Basically, what we did with the two assumptions you are assuming that you are at either end of the spectrum. If you have zero-displacement, that is assuming that no one is going to make any sets at all to make up for the sets that they would have made in the closed area, so that would be the maximum reduction in their harvest and the maximum bycatch reduction.
Page 35 PREV PAGE TOP OF DOC
The other end of it is if you assume that all of the sets are displaced and then you end up with the minimum reductions in bycatch, but also the minimum reductions in the total harvest.
Mr. SAXTON. And under your plan, displacement would not only likely take place in the Gulf, it would also take place in the Atlantic?
Ms. DALTON. Yes.
Mr. SAXTON. And the logical place for the displaced fishermen to go in the Atlantic would be in the mid-Atlantic Bight, would it not, and further offshore?
Ms. DALTON. Yes, actually they could go to the mid-Atlantic Bight. They could go to the Gulf. They could go to the Caribbean and Grand Banks.
Mr. SAXTON. Would it be fair to say that you might expect less displacement if there were a viable buyout in place?
Ms. DALTON. That would be our expectation.
Mr. SAXTON. And because you have difficulty measuring the amount of displacement or the number of displaced boats without a buyout, it would become somewhat more difficult to measure if you did have a buyout?
Ms. DALTON. Yes. The other thing that the buyout does is it reduces—what you find is that you have localized impacts on the industry and on coastal communities in these areas where you have the closures. So, a buyout would help mitigate those localized impacts as well, at least on the fleet. It wouldn't deal with some of the problems you have with the distributors and the suppliers.
Mr. SAXTON. If you stay for the balance of the testimony—and I am not sure whether you plan to or not—but if you do, you will hear testimony later today that the closed area ought to be extended into the mid-Atlantic Bight. Would you comment on that thought?
Page 36 PREV PAGE TOP OF DOC
Ms. DALTON. Let me turn it over to Rebecca.
Ms. LENT. Thank you, Mr. Chairman. We have tried to lay out a number of alternatives in our analyses that support the Proposed Rule package, and again we tried to strike a balance between reducing that discard and minimizing the impact on the target species. We selected what we think is a good balance. We are in the process right now of public comment period, and we are hearing from folks that maybe we haven't got that balance just right. Indeed, there is some concern that as you displace the effort, either the boats move, the boats that remain in the fishery make more sets than the areas that remain open, we might have an impact, and that is why we would be interested in being able to follow this year to year. Any time-area closure may need adjustment in the future, and there is some concern about bycatch rates in the Caribbean and in the mid-Atlantic area.
Mr. SAXTON. Thank you very much. Mr. Faleomavaega.
Mr. FALEOMAVAEGA. Thank you, Mr. Chairman. Ms. Dalton, I do have several questions that, just for the sake of time, I will submit to your office, if you could respond to them accordingly, if it is all right. I do have some conceptual questions I would like to discuss with you this morning.
These bills are in place, and we have got the Magnuson Act, we have ICCAT. What is your administration's position basically on the provisions of these proposals. Do they seem to work hand-in-hand with the current aspects of the law under the Magnuson Act as well as with ICCAT's function, or do you think they go beyond what we are trying to do here? In other words, does the administration feel that there are sufficient laws that can handle the concerns that have been expressed by the provisions of these bills?
Ms. DALTON. I think our position is that we could probably—we certainly support the intent of the legislation to deal with the bycatch problem and also to mitigate the impacts of the displacement, potential displacement.
Page 37 PREV PAGE TOP OF DOC
The question of whether we can move forward with this administratively, yes, we have a Proposed Rule. We probably can do a buyout proposal as well. There is about $10 million in our budget proposal for 2001, for fisheries assistants programs. A portion of that money could probably be allocated to a buyout, if it is appropriated.
One of the values, though, in the things the administration has watched is this whole collaborative process and having the recreational industry and the commercial industry work together to try to solve the problem, and there is a value in that that is very difficult to quantify, but we certainly would like to support and encourage.
Mr. FALEOMAVAEGA. Has the administration had an opportunity to quantify what the actual costs will be on the buyouts if this does become viable? I mean, you mentioned $10 million, but I was wondering, this might be a lot more than what we are expecting.
Ms. DALTON. Yes. If you assume that you are going to need to have the funding that is authorized to be appropriated, it is probably, what, upwards of about $25-30 million.
Mr. FALEOMAVAEGA. When you say ''buyout'', does this mean that the fishermen can go to another destination and continue fishing, or is he just going to scrap his vessel?
Ms. DALTON. Well, I think the bills would basically call for all of their permits to be removed, and they wouldn't be able to participate in any commercial fishing. The boats could be used for some other purpose. I don't think there is a restriction on their use in a recreational fishery. Or they could be used for some other—I don't know—whatever other purpose, research or something like that.
Mr. FALEOMAVAEGA. What if you come and fish in the Pacific?
Ms. DALTON. No, they wouldn't be able—because they would lose their fishery endorsements and their documents and their permits.
Page 38 PREV PAGE TOP OF DOC
Mr. FALEOMAVAEGA. I was just noticing, the Pacific Ocean is a lot bigger than the Atlantic Ocean. I was just curious——
Mr. SAXTON. If I could just state for the record, not only would we buy the boats under our proposal, and I believe both proposals—I am sorry—we wouldn't buy the vessel, we would buy the permits. So, under both proposals, once the buyout occurred, the permits would be removed and commercial fishing on that vessel would cease.
Mr. FALEOMAVAEGA. But that will not prevent them from fishing outside U.S. waters, right?
Ms. DALTON. There is actually a restriction on their use and fishing in foreign fisheries, too, in the legislation.
Mr. FALEOMAVAEGA. There has been a little concern expressed, or criticism, about ICCAT's capability of maintaining the swordfish. What is the administration's position, is ICCAT doing its job, or are they just kind of wriding along and not really doing what they are supposed to be doing?
Ms. DALTON. I think that there has been pretty substantial progress that was made. At the last meeting, there was agreement on a 10-year rebuilding program for swordfish that calls for overall reductions in the quota, and also would have the dead discards counted against the quota.
Mr. FALEOMAVAEGA. I notice that we have some charts here that have been submitted on it, and let me say the National Marine Fisheries is a lot more colorful description of the latitude, longitude and—in fact, it is quite a difference also with both the Breaux and Chairman Saxton's proposals.
Are you suggesting that in your proposal you are a lot more scientific in understanding the nature of the migratory fish as to why this whole area between Louisiana and Florida has been zeroed-out?
Page 39 PREV PAGE TOP OF DOC
Ms. DALTON. No. I am told that it was just a printing error. It just happened to be printed on our documents but not on the other ones.
Mr. FALEOMAVAEGA. That is a big printing error. So this is not really the true description of the——
Ms. DALTON. No, it is a true description. There are coordinates that—we could put the same coordinates on the other two charts as well.
Mr. FALEOMAVAEGA. You got me on that one. It says here on the 90-degree longitude—here, again, I am not a fisherman—but between that 90-degree longitude and the whole West Coast of Florida is zero. I mean, there is no restriction——
Ms. DALTON. Oh, okay. I thought you meant just the fact that the labels were on here. Yes. The area in the Gulf is quite different. And, again, we did it by analysis of the logbook data. There is a fairly high level of bycatch in the southern area that we closed, so we got a significant bycatch reduction by including that area that is further to the south of what is in the legislative proposal. There is less of a conservation benefit tied to the logbook data that we have in the Eastern Gulf.
Part of what—the other thing that has been interesting in the public hearing process is we have gotten a lot of commentary on the use of live bait that is tied to the Gulf, and the suggestion that you have higher incidence of bycatch for billfish whenever you use live bait. So this is one of the things that we are going to be looking at as we go back and relook at our Proposed Rule.
Mr. FALEOMAVAEGA. Let us talk about bycatch. This is a very sensitive issue to me and those of us in the Pacific, and I suspect that you have purse seiners also in the Atlantic Ocean catching fish in a very unique way, and the fact that there is a tremendous amount of bycatch, not necessarily skipjack, but you end up with swordfish, sharks, all other varieties of fish, which basically in my understanding is just simply discarded and not even used at all for any purposes.
Page 40 PREV PAGE TOP OF DOC
Has the National Fisheries Service made any estimates of the value of this bycatch that is caught also in the Pacific as well as in the Atlantic? I am told it is in the billions of dollars.
Ms. LENT. I would just mention that in the Atlantic we only have five purse seiners, and that we have had observers onboard with logbooks, and there is very little bycatch in this fishery. They send planes out, they find schools of bluefin, they set their net, and there has been very little bycatch problem.
Mr. FALEOMAVAEGA. You only have five purse seiners in the whole Atlantic Ocean? None from the French? None from the Norwegian countries? None from other foreign countries? I can't believe that.
Ms. LENT. I am talking about the U.S. Fleet in the Atlantic.
Ms. DALTON. For highly migratory species. We also have purse seiners for menhaden as well.
Mr. FALEOMAVAEGA. What is the estimate of purse seiners that we have fishing internationally in the whole Atlantic?
Ms. DALTON. We can get you the information, but I don't have it now.
Mr. FALEOMAVAEGA. I know we have about 35 purse seiners, U.S. parceners, that do fishing in the Pacific, and I also know that the Korean government recently allocated over $4 billion to improve its fishing fleets which now totals about 780 vessels. And a very serious concern that I have is that these governments literally provide funding to subsidize their fishing fleet. We don't do that. We are not doing that. And I am very, very concerned at the fact of how can it be possible for our commercial fishing industry to compete when countries like Korea just simply put out $4 billion to upgrade and to get a whole new fleet of the most modern technologically purse seiners, longliners, they have got it. What do you suggest on how we should compete?
Page 41 PREV PAGE TOP OF DOC
Ms. DALTON. We have been working in various different international fora to—we agree with you completely that harmful subsidies are a problem in world fishing fleets, and we have been working at FAO and also in other international groups to try to get international agreement to reduce those subsidies.
Mr. FALEOMAVAEGA. This is my concern, Mr. Chairman, and I am sure Penny has been made aware of this—we are putting a lot of requirements and restrictions on our own fishing industry to comply with ICCAT requirements, even what we impose on ourselves, but how do we control those foreign fishing vessels that have just come right in and taken, and they don't even care about complying with the kind of concerns that we have about conservation and this type of thing.
Ms. DALTON. I think it is a problem. There is very little that we can do unilaterally. That is the reason we have been working within groups like the Food and Agricultural Organization to come to agreement on the need to eliminate harmful subsidies. As you know, we are also working on an agreement in Western Pacific, the multilateral high level conference right now that is going on, that will hopefully come up with a long-term agreement that will strengthen conservation and management in the Western Pacific.
Mr. FALEOMAVAEGA. I can tell you right now, Ms. Dalton, that the Japanese do not want any observers on their vessels, period. They have been fighting that for years, and they will probably continue doing so even in the Atlantic. I am positive that the Japanese have a fleet also in the Atlantic and, unfortunately, when they get in international waters we don't have much to say about that, but it doesn't help our own fleet. And I just wanted to express that concern, Mr. Chairman. Thank you. I know I have taken too much time.
Mr. SAXTON. Thank you. Mr. Pallone.
Mr. PALLONE. I just wanted to ask Ms. Dalton—and this is without prejudice to any of my colleagues because certainly on the Republican side of the aisle, Mr. Saxton and Mr. Goss are people that I respect and work with, but are you concerned—I just wanted to ask you if you are concerned that basically we have proposals here—you know, Congress is legislating on the matter of the time-area closures for the swordfish. Is your position that—do you think that specific management measures should be done this way through legislation, or would you rather that NMFS and the councils deal with this?
Page 42 PREV PAGE TOP OF DOC
I guess one of the concerns I would have is the precedent that is set. Of course, I love to legislate, too, so I am probably not the person that should be asking this, but are you concerned about the precedent, or do you feel that you can work with this legislation? I mean, it is a little unusual to have legislation that comes out at the same time in terms of you have a specific proposal and now you have two other members of Congress proposing things that are somewhat different and somewhat the same, and I just wanted your opinion on that.
Ms. DALTON. I think it is always preferable to deal with things administratively. In terms of the precedent, I think the precedent has already been set. We had the American Fisheries Act about two years ago that did something that is fairly similar to the provisions that are contained in this legislation.
While it may have been congressional management of the fisheries that raised people's concerns, it also appears to have been fairly successful in addressing overcapitalization in the North Pacific, and helping to rationalize that fishery.
So, I guess while we certainly are worried about micromanagement, we are willing to work with you on it and try to make sure that whatever you decide to do is the best thing both from a conservation perspective and also to benefit the fishery itself.
Mr. PALLONE. I will just keep a note, Mr. Chairman, so that the next time when I propose some legislation and NMFS doesn't like it, I will just remind them of what Ms. Dalton said. Thank you.
Ms. DALTON. We are happy to work with you.
Mr. SAXTON. Penny, before you go, may I just follow up on Mr. Pallone's questions. I know that you are not creating a buyout program with the regulations, as proposed. Can you create a buyout program through regulations?
Ms. DALTON. We have a Proposed Rule that is winding its way very slowly through the administrative process—actually, it is the Final Rule—that would provide the guidelines for doing buyout programs generally under Section 312 of the Magnuson-Stevens Act.
Page 43 PREV PAGE TOP OF DOC
We probably could do that. Our primary limitation is at the present time we don't have any funding to do it, and there are two ways of doing that. If you do a direct Federal payment on it, it obviously requires a substantially higher appropriation. You also could do an industry-funded program that you could do by allowing the industry to take out a loan. What you are doing in your legislation is a combination of both of those things. We could probably do it administratively.
Mr. SAXTON. You could probably do it administratively with the tools you have?
Ms. DALTON. If we had the funding, but we don't have the funding either.
Mr. SAXTON. I am sorry, but we have to get the funding for our proposal, too. I mean, if Congress has the will to appropriate for a new statute, then why wouldn't Congress have the will to appropriate for a regulation? What is the difference?
Ms. DALTON. I think control of the conditions that the buyout is made under.
Mr. SAXTON. Why did you decide not to propose a rule for a buyout?
Ms. DALTON. I don't think that we made a decision not to propose a rule for the buyout. The Proposed Rule, as it currently is stated, does not have mitigation for the socio-economic impacts. One of the things that we are going to have to do in receiving public comment on that rule is go back and balance. I don't know what we will finally come out with on it.
At this point, the administration budget that just came out doesn't contain funding for doing a buyout for this fishery, other than that general financial assistance program that is intended to be used on a national basis.
Page 44 PREV PAGE TOP OF DOC
Mr. SAXTON. When will this Proposed Rule be final?
Ms. DALTON. May 1.
Mr. SAXTON. And on May 1 then, you would anticipate that these areas proposed by this rule will be closed, is that right?
Ms. DALTON. Well, we will finalize the Rule. What we do in terms of the implementation is another issue. There will be at least a 30-day cooling off period.
Mr. SAXTON. That is a good term. What do you anticipate will happen at the end of the 30-day cooling off period that you just mentioned?
Ms. DALTON. Some sort of closure would go into effect unless the Rule is somehow modified to phase it in. One of the things that we have looked at, I don't think there has been any decision on. What we have done in some areas where we know that there is going to be a substantial economic impact is we have phased in closures or phased in the regulations. We have done that in some of the New England fisheries to help mitigate those impacts. But the Rule would go into effect then under whatever conditions we impose.
Mr. SAXTON. Just to change thoughts for a moment, have you done any kind of an analysis to determine localized socio-economic impacts?
Ms. DALTON. Excuse me?
Mr. SAXTON. Have you done any kind of analysis to determine localized socio-economic impacts?
Ms. DALTON. Let me turn that over to Rebecca.
Ms. LENT. We have made an attempt, based on the addresses of permit holders, to localize the community and identify the communities that would be most affected. We have, of course, looked at every single boat and every single fish they catch and tried to say what if they lost all those sets and what is the economic impact. We have the home address. One of the challenges of looking at the socio-economic effect is that the boats move around to follow the fish. You might have a boat that is in New England part of the year, and it comes down to Florida part of the year. It has been a challenge, but we have made an attempt to do that, and we are trying to get more information through our public comment process.
Page 45 PREV PAGE TOP OF DOC
Mr. SAXTON. Just back to the displacement issue for a moment, would it surprise you to learn that some New Jersey marina owners have been contacted by longline fishermen from the southern part of the Atlantic for dockage?
Ms. DALTON. No.
Mr. SAXTON. It wouldn't surprise you?
Ms. DALTON. No.
Mr. SAXTON. I guess I have no further questions at this time. Mr. Faleomavaega, do you have any follow ups?
Mr. FALEOMAVAEGA. Just one short one. Ms. Dalton, has your office found any provisions of the Magnuson-Stevens Act that runs contradictory to the proposed legislations, or any provisions of the Magnuson-Stevens Act that is contrary to any provision that has been proposed here?
Ms. DALTON. I am trying to think if there is any. I don't think there is any direct contradiction that I can think of.
Mr. FALEOMAVAEGA. Leave it to the National Marine Fisheries, they will find something.
Ms. DALTON. One of the things in Mr. Saxton's bill, he amends the underlying statute. So, that obviously is a change from what is in the law right now.
Mr. FALEOMAVAEGA. Thank you, Mr. Chairman.
Mr. SAXTON. Thank you very much, Ms. Dalton, for being with us this morning. We always enjoy having you here, and I hope we weren't too tough on you today. We didn't try to be, anyway.
Mr. SAXTON. Moving on to the next panel, we have Mr. Glenn Roger Delaney, who represents the Blue Water Fishermen's Association and who is also a Commissioner to ICCAT; Mr. Michael Nussman, who is Vice President of the American Sportfishing Association; Mr. Robert G. Hayes, who is General Counsel of the Coastal Conservation Association; Mr. Ernest Panacek, who is Manager of Viking Village in Barnegat Light, New Jersey, a town and an organization which I am very familiar with; Mr. Richard Stone, Science Advisor to the Recreational Fishing Alliance, RFA; Mr. Gary Caputi, who is Co-Chairman of the Highly Migratory Species Committee and is a member of the Jersey Coast Anglers Association; and Dr. David Wilmot, Executive Director, Living Oceans Program of the National Audubon Society.
Page 46 PREV PAGE TOP OF DOC
Obviously, there are a lot of members on this panel, so I would like to just remind you that we try to observe a five-minute rule for your testimony, and that your written testimony will certainly be included in the record in its entirety.
Mr. Delaney, you may begin at your leisure.
STATEMENT OF MR. GLENN ROGER DELANEY, BLUE WATER FISHERMEN'S ASSOCIATION AND U.S. COMMISSIONER TO ICCAT
Mr. DELANEY. Thank you, Mr. Chairman. I may be your first violator of the five-minute rule, but I will do my very best.
Members of the Subcommittee, for the record, I am Glenn Delaney, Consultant to the Blue Water Fishermen's Association. I also serve as the U.S. Commissioner to ICCAT, representing the commercial fishing industry.
Mr. Chairman, our industries have certainly brought many problems to you over the years, but it is rare that we bring to you a solution, real solution, that has been hammered out in advance by the mainstream of the core constituencies, a solution that respects U.S. fishery policy, is based on sound science, and achieves major conservation objectives while addressing the social, economic and political realities of fisheries management. That is what I think we have done here, Mr. Chairman.
Our proposal, which is fully reflected in H.R. 3390 and which is at the core of your bill, is first and foremost about conservation. Our proposal used the best available science to identify true hotspot concentrations of bycatch in order to design vast time-area closures where 52 percent of the small swordfish and 31 percent of the billfish bycatches occur in U.S. waters.
Our proposal includes a buyout designed with the help of NMFS' economists that both minimizes displacement and provides a reasonable opportunity for those fishermen put out of business to restructure their lives, but that is not all. The buyout also substantially increases the bycatch conservations of this bill. The 68 vessels eligible for the buyout account for at least 65 percent of the total small swordfish bycatch, 56 percent of the blue marlin bycatch, 37 percent of the white marlin bycatch, and 47 percent of the sailfish bycatch in the U.S. EEZ. The conservation potential of this buyout is enormous. Finally, our proposal invests in future gains in bycatch conservation by establishing an important research program in the Gulf and Atlantic.
Page 47 PREV PAGE TOP OF DOC
As well conceived as we think this proposal is, it is, as you can imagine, based on a very delicate agreement. Many months of negotiations and compromise have produced what is perhaps the only balance that could be struck between these groups. We are very apprehensive about changes that might have the effect of causing this unusual, perhaps once in a lifetime, opportunity to slip away.
As you explained before introducing your bill, Mr. Chairman, you chose to include for the purpose of discussion certain provisions that are in addition to those that we recommended. I hope you will receive my comments in that spirit and understand that they are given with the sincere purpose of providing our best possible advice.
There are three issues that I would like to cover. I think I will probably run out of time, but I will start with buyouts. In theory, policy supporting the use of buyouts to achieve special resource and economic objectives is well established in the Magnuson-Stevens Act, particularly in section 312(b) of National Standard 8.
I would just interject here that our analysis of section 312(b) does not provide NMFS with the authority to establish a buyback for highly migratory species which, as you know, are treated differently under the Act than council managed species, and I would just note that difference.
In practice, it has been Congress that has developed buyouts with extensive industry input to address several unique circumstances that have developed in fisheries in recent years. I believe our proposal is entirely consistent with this policy and with this precedent. The bottom line is that the conservation benefits of our proposal could not be achieved without this particular buyout program, period. It remains one of the fundamental reasons why we believe this proposal can succeed.
In contrast, Blue Water has expressed serious difficulty with the second mid-Atlantic buyout proposed in Section 7(k)(1) of the Chairman's bill. Buyouts represent an extraordinary solution to an extraordinary resource and economic problem. Buyouts need to have a very compelling purpose. Buyouts need to be widely supported from within the affected industry.
Page 48 PREV PAGE TOP OF DOC
While we feel that the purpose of the first buyout related to the impacts of the time-area closures is compelling, it is not as clear to Blue Water what the purpose is of the mid-Atlantic buyback.
First, it is not associated with the impacts of a time-area closure.
Second, the U.S. longline industry is not overcapitalized, so the purpose cannot be to mitigate the economic impacts of overcapitalization, as Congress did in the Bering Sea pollock fishery through the American Fisheries Act.
Third, the pelagic longline fishery has not experienced a resource collapse or conservation crisis, as was the case underlying the New England groundfish buyout.
Blue Water respectfully, but strongly, recommends against the establishment of the second mid-Atlantic buyout.
The second issue I would like to cover is unilateral action. Mr. Chairman, I included on page 10 of my written submission a statement you made on the House Floor in October of 1990, when you helped champion the addition of section 6(c)(3)(K) to the Atlantic Tunas Convention Act. This provision restricts U.S. unilateral action when implementing ICCAT conservation measures.
Mr. Chairman, your statement may be the most coherent explanation that I have ever read of why this provision is now a cornerstone of U.S. policy regarding the international management of highly migratory species. Your statement and this provision reflect the core of U.S. policy and the fundamental truth that no nation can effectively conserve and manage these unique fish through a unilateral strategy. Instead, international cooperation throughout the range of these fisheries is essential to both successful resource conservation and to the fair treatment of U.S. fishermen.
Mr. Chairman, since you made that statement on the House floor, absolutely nothing has changed that would justify a change in U.S. policy or an amendment to that provision. So, we strongly urge you to drop section 7(k)(3) of your bill. I would make the same recommendation to you regarding the closely related provisions set forth in section 7(k)(2) of your bill, which would require the Secretary to make unilateral reduction in the U.S. quota of swordfish.
Page 49 PREV PAGE TOP OF DOC
I think my time has expired. I did want to address the issue of displacement, and I would be happy to outline some of the reasons why we feel displacement will not be a problem under a proposal, and perhaps in response to a question, Mr. Chairman, or I can simply continue at this time, whatever your preference is.
Mr. SAXTON. In light of the fact that we have a number of witnesses, let us move on and we will try to get to those issues during the question-and-answer period.
Mr. DELANEY. Very good, sir. I would just like to wrap up and thank you for your tireless attention to the unusually complex challenges that we face in the management of Atlantic highly migratory species and, in particular, I appreciate making your staff consistently available to contribute to our efforts at ICCAT. Thank you very much.
[The prepared statement of Mr. Delaney follows:]
Mr. SAXTON. Thank you.
Mr. Nussman.
STATEMENT OF MR. MICHAEL NUSSMAN, VICE PRESIDENT, AMERICAN SPORTFISHING ASSOCIATION
Mr. NUSSMAN. Thank you, Mr. Chairman. I appreciate the opportunity to be here today and to testify on behalf of the American Sportfishing Association. ASA is a non-profit trade association that represents 500 members of the sportfishing industry. Besides working for that group, I also serve as the U.S. Recreational Commissioner to ICCAT.
Today, I am going to comment on the entire variety of bills that have been laid out before you, as well as the NMFS proposal that has been discussed previously.
Billfish—and by that I mean blue marlin, white marlin and sailfish—as well as swordfish are important recreational and commercial species. Unfortunately, in the Atlantic, each of these species is overfished. Billfish are at about 25 percent of the level necessary to provide and sustainable yield, while swordfish are at around 65 percent of that level.
Page 50 PREV PAGE TOP OF DOC
Having said that, the outlook for one of these stocks, swordfish, is improving. The last stock assessment completed in the fall shows the stock has stabilized—and, in fact, may be recovering—due in large part to international and domestic quota cuts taken over the last five years.
Even more promising, late last year ICCAT agreed to a 10-year rebuilding plan for swordfish. As a part of that plan, U.S. swordfish quotas will be cut by 7 percent this year, and that will increase to 12 percent by the year 2002.
Now, with this background, I think it is important to understand why ASA, along with the Coastal Conservation Association and the Billfish Foundation agreed to work together with Blue Water on a concept that has become H.R. 3390, and in large measure your bill, H.R. 3331.
From a recreational perspective—and I mean that both from the industry perspective as well as the angler perspective—our goal is a very simple one. We want to improve recreational fishing.
So, despite the fact that we have swordfish on a reasonable path to recovery, we all know that billfish are still in significant trouble. Further, we recognize that the single largest source of billfish mortality in U.S. waters is longline bycatch. So, collectively, our groups came together. We took the best scientific data and identified areas that had the highest bycatch-to-targeted catch ratio and we proposed to close them.
Next, the groups agreed to cooperate in a buyout of longline vessels that spent a significant amount of time fishing in these areas. From our perspective, there are two good reasons to do this. First, we are taking these fishermen's livelihoods from them, and equity dictates that they be compensated.
Second, despite the quota reductions I spoke of earlier, if these vessels are not retired, their effort could be displaced elsewhere, and this displacement could, in fact, have unintended consequences which we can't predict.
Page 51 PREV PAGE TOP OF DOC
Each of the groups involved realize that this effort, while an important and critical first step, will not be the final answer in restoring our fish populations to healthy levels. So, we have included a research program to improve data on bycatch associated with longline fishing. This three-year effort, signed off on by all parties, will yield important information upon which to base future management decisions.
Finally, Mr. Chairman, despite the ICCAT quota reduction and the buyout contemplated by the legislation, some have raised concerns that longline vessels will be displaced to other areas. To address this issue, both your bill and H.R. 3390 require aggressive monitoring in the mid-Atlantic, an area where any possible displacement could, in fact, occur.
This monitoring will be accomplished by increasing the level of observer coverage and by mandating use of vessel monitoring system. Further, the bills require NMFS to take action if displacement is found to be affecting recreational fishing.
With regard to the rule proposed by the National Marine Fisheries Service, we compliment the agency for its hard work and note that the proposed areas, while different in some ways, are, in fact, fairly similar to the areas that we propose.
Unfortunately, the agency does not at this time have all the tools needed to complete its work. NMFS' proposal, because it lacks a buyout, actually encourages displacement of longline effort outside the closed area because it leaves the displaced boats in business. NMFS acknowledges that this displacement is likely to occur and, in fact, will result in increased bycatch of blue and white marlin, both species that are significantly depressed. We believe that would be a disappointing outcome for such a significant proposal as we have on the table today.
In concluding, Mr. Chairman, I believe that of the bills being considered here, H.R. 3390 has the broadest support. I would say that it is not a perfect bill but, in fact, few bills are. With that understanding, I would urge you to move it forward. I appreciate the opportunity to testify, and look forward to answering any questions. Thank you.
Page 52 PREV PAGE TOP OF DOC
[The prepared statement of Mr. Nussman follows:]
Mr. SAXTON. Thank you.
Mr. Hayes.
MR. ROBERT G. HAYES, GENERAL COUNSEL, COASTAL CONSERVATION ASSOCIATION, AMERICAN SPORTFISHING ASSOCIATION, THE BILLFISH FOUNDATION
Mr. HAYES. I am here today as the General Counsel for the American Sportfishing Association, the Coastal Conservation Association and the Billfish Foundation. I want to address three issues that have been raised here this morning, and three issues that I think are important to the passage of this bill.
The first one is, why legislate? Why do we need to do this in Congress? There are three very fundamental reasons, in my view. The first, Glenn has already indicated, there is a question whether there is authority under the Magnuson Act to do a buyout through the National Marine Fisheries Service. That is an obvious question.
The second thing is that the buyout that is envisioned in the Magnuson-Stevens Act doesn't allow recreational fishermen, who clearly could be the beneficiaries of a buyout, to participate.
And the third reason is that there are a number of decisions that have been made here, because this is a compromise, which might not be the most perfectly scientifically supported compromise that could be used here. Let me give you the best example.
The question was raised about the Gulf of Mexico. The administrative proposal essentially is to close the entire EEZ off the State of Texas. That will essentially displace 35 to 40 longliners who now reside in the State of Texas and would have to go to the upper Gulf.
Page 53 PREV PAGE TOP OF DOC
Our purpose in designing the line the way in which we designed it was to ensure that there would not be any displacement of longline vessels from the Gulf of Mexico because, if we were going to displace them, that would increase the cost and increase the buyout.
Our concept here is to minimize displacement, but provide the greatest, broadest lateral benefit to recreational fishermen in the Gulf. That was the basis of the negotiation. Frankly, the proposal by the National Marine Fisheries Service would have to be essentially to close the entire Gulf, if it was going to benefit recreational fishermen. If you close the entire Gulf, it is obvious at that point that you are going to displace 100 vessels out of the Gulf of Mexico, clearly something that we were trying to avoid.
The second thing I want to talk about is the question of why legislate. What we are trying to avoid here was litigation. There has been a lot of discussion about the possibility of proceeding administratively with the closure and then having the buyout.
Frankly, it is our belief that if you do not couple the two together, that you are going to put yourself into Federal District Court someplace and we are going to be involved in litigation for years over whether these are the right areas, whether the science supports them, whether the displacement is accurate, whether the buyout plan ultimately developed by the National Marine Fisheries Service is fair.
What that leads us to believe is that we were talking about a five-year process under the administrative approach. We think all of that can be avoided by the bills that we have agreed on and have brought to you.
The second thing I want to talk about very briefly is this research program. The research program here is, to the recreational community, one of the jewels of this legislation. What we are asking Congress to do is fund a research program not for the National Marine Fisheries Service, but to fund a program that allows scientists from the environmental community, from the recreational community, and from the commercial community, to come together and design a system in which we can prove to each other whether there are available bycatch reduction mechanisms that can be put in place here in the United States. That research program should lead us to a practical, logical, scientifically supported form of management free for five years down the line.
Page 54 PREV PAGE TOP OF DOC
The last thing I want to talk about, and I am going to do it very briefly, is I want to talk about this issue of what do we do internationally. I was intrigued by the comments that there was more than one longline fleet and parcener fleet out floating around in the Atlantic Ocean. This program that we have put forward—closed areas, reducing fleet size, looking at research, looking at alternative ways of reducing bycatch—we want to take this concept internationally. I think we could even take it to the Pacific Ocean because, if it works, it works on every vessel.
And then the question becomes, do we have the domestic willpower and the presence to go to international organizations and get them to buy these kinds of closed areas and scientifically proven bycatch reduction systems? I think we do, and I think for all of those reasons it is important to support these bills and move them forward. Thank you.
[The prepared statement of Mr. Hayes follows:]
Mr. SAXTON. I am glad you said ''support these bills''. That is very good.
Ernie Panacek.
STATEMENT OF MR. ROBERT G. HAYES, GENERAL COUNSEL, COASTAL CONSERVATION ASSOCIATION, AMERICAN SPORTFISHING ASSOCIATION, THE BILLFISH FOUNDATION
Good morning Mr. Chairman:
My name is Bob Hayes, and I am the General Counsel for the Coastal Conservation Association (''CCA''), The Billfish Foundation (''TBF'') and the American Sportfishing Association (''ASA''). This morning I'd like to focus my testimony on three areas. First, I would like to tell you a little about CCA and TBF. Second, I would like to tell you about how some of the policy decisions in H.R. 3390 were made, and third, I would like to address the particulars of the bill itself.
Page 55 PREV PAGE TOP OF DOC
The Coastal Conservation Association is the leading marine recreational fishing group in the United States. Formed by a small group of sportfishermen in Houston in 1978, CCA has grown to a fifteen-state operation with over 70,000 members. Each of our states operates somewhat independently, focusing on issues in the state that are important to marine recreational fishermen. However, like so much in fisheries management, conservation issues encompass a regional and national perspective; therefore, CCA learned long ago that Federal and international fisheries management were just as important to the local marine recreational fishermen as the conservation of the most local fish population.
CCA pursues conservation policies set by our state and national Boards of Directors. These boards are made up of active volunteers concerned about the health of the nation's fisheries. CCA has been active in a number of conservation issues in the last twenty years, including: all of the east and Gulf coast net bans; gamefish status for redfish, speckled trout, tarpon, striped bass, river shad, marlins, spearfish and sailfish; and the reduction of bycatch through the use of closed areas and technology. We have also pushed for the improvement of the management system through the restructuring of state and Federal management systems, the elimination of conflicts of interests by decision-makers, and the active involvement of our membership in the management process.
TBF began as a result of a concern by a group of offshore fisherman that scientific emphasis on billfish was inadequate to develop meaningful conservation measures. From its inception TBF has taken the leadership role nationally and internationally in the development of science to recover billfishes. As that science has developed, TBF has expanded its advocacy role to include both domestic and international management of billfishes.
Today, TBF has members from all over the world and works cooperatively with tournaments and other groups interested in the conservation of billfishes. Like CCA, it is a board driven policymaking body that hires professional staff to implement the policy.
Page 56 PREV PAGE TOP OF DOC
The four guiding principles.
Legislation like the kind being proposed can't be developed without some guiding principles. Four have been used by the parties to the MOU that lead to the Saxton and Goss bills under consideration today.
Sound science, not emotion, should be the basis of fishery management decisions.
The National Marine Fisheries Service and The Billfish Foundation developed the underlying science for all of the bills dealing with HMS. Dr. Phil Goodyear, in his published report, found that there were areas of the Gulf of Mexico and the Southeast coast that if closed to longlining would reduce the bycatch of billfishes and small swordfish. The data and conclusions in that study form the basis for the NMFS proposal. It is not suprising that they are very similar, especially on the East Coast. The bill's unified approach to closing these areas demonstrates the value of sound science.
Longline bycatch is not one of those areas where the science is abundant. Therefore, the bills establish a scientific research program to determine ways to further reduce bycatch in the longline fishery. That scientific analysis will give Congress, fishery managers and the public a better understanding on which to base future decisions.
There has to be a benefit to all parties to make this work.
Not every group will get what it wants when this legislation goes into effect. Deals like this one are extremely complicated because of the diversity of the fishery and the lack of legislative authority to do what needs to be done. The recreational fishing community got into this because we wanted to improve billfishing. To do that, we had to address the single largest source of mortality in U.S. waters—longline bycatch. The longline fishery is extremely complicated. It is managed by the states, the Federal Government and by an international body. It is not monolithic. There are tuna and swordfish fleets and mixes of the both. They fish year round all over the Atlantic Ocean. Universally, they have said to us that they want to address the same problem we do, but they don't want to go out of business doing it.
Page 57 PREV PAGE TOP OF DOC
The Goss bill tries to balance the interests of the fleet with the interests of the fish that recreational fisherman want to catch, and for the most part, release. The buyout program will clearly benefit the fleet by reducing competition and making the remaining fleet more viable. The closed areas will also benefit the fleet by reducing small swordfish catches and helping them accommodate the new ICCAT rebuilding plan. The closed areas will be a tremendous benefit for recreational anglers. Not only will they improve billfish catches, but also it will improve the catch of mahi mahi and wahoo. In addition it will reduce the conflicts between these gears, which has lead to many of the emotional confrontations with the longline fleet.
The beneficiaries of the bill have to contribute to the cost.
One of the earliest votes taken by CCA, TBF and ASA on the negotiation was whether we as recreational fishermen were willing to pay for some of the buyout of the longline fleet. The vote was unanimous. These groups operate on a principle that we are willing to put our money where our conservation mouths are. There are number of instances in which recreational fisherman have participated in the buy-out of gear and licenses through the contribution of funds. As an example in Louisiana, we supported legislation that placed a surcharge on recreational fishing licenses to provide funds for commercial fishermen impacted by the net ban. In Texas CCA made direct contributions to the state to buy-out bay shrimp licenses. The tackle industry has been making contributions to improve fishing for years through Wallop-Breaux. Putting money up to improve fishing is not new for the recreational sector. We look at resource issues to determine what gains can be made and how those gains will improve recreational fishing. We are not willing to stand back and avoid achieving improvements because someone else is responsible for the damage. We are willing to pay because we are getting a benefit.
The commercial industry is also willing to pay because of the benefit they are getting.
Page 58 PREV PAGE TOP OF DOC
Minimize displacement of the remaining fleet.
Displacement of the remaining longlining fleet—the unintended moving of the fleet from one place to another—has been a concern of all four groups from the beginning of our discussions. We have tried to minimize the impact on other areas of the country. As a result, we decided early on that none of the bought out vessels could be used in any other commercial fishery. We concluded in the Gulf that the closed area had to be d