Gulf of Mexico Florida Shrimp Fishery Improvement Project 2012

Gulf of Mexico Florida Shrimp Fishery Improvement Project 2012 Overview The Florida shrimp fishery primarily targets pink shrimp (Farfantepenaeus duorarum). Pink shrimp are found in the western Atlantic Ocean from the Chesapeake Bay to the Florida Keys and throughout the northern Gulf of Mexico to the Yucatan in Mexico. They are most plentiful in southwest Florida (especially the Tortugas grounds off the Keys) and in the southeastern Gulf of Campeche. Pink shrimp are caught in relatively shallow water less than 30 fathoms deep, but primarily 11-15 fathoms. They prefer sand, sand-shell, or coral-mud bottoms. This fishery occurs in Florida state waters as well as federal waters of the US Gulf of Mexico. On the Gulf coast of Florida, state waters are from the shore out to 9 nm; from 9 nm to 200 nm is considered federal waters. The primary gear used to harvest shrimp is the otter trawl (it is essentially the sole gear used in federal waters), while in state waters fishermen may also use wing nets (butterfly nets), pusher-head trawls (chopstick rigs), stationary butterfly nets, skimmer trawls, roller-frame trawls, cast nets, channel nets, haul seines, traps, and dip nets. Most pink shrimp harvest occurs from October to May. Shrimp have very short lives (18-24 months) and a very high reproductive capacity (one female can release 215,000 to 1 million eggs every 3 days). These biological characteristics make them inherently resilient to fishing pressure. Shrimp abundance is driven by environmental characteristics, not abundance of spawners. Yet, it is possible for shrimp to experience growth overfishing (harvest of individuals before they reach their maximum attainable size). For these reasons, management of shrimp fisheries tends to focus more on maximizing economic value by delaying harvest until shrimp are larger and more economically valuable. Management also focuses on the ecosystem impacts of harvest, because the primary gears used to harvest shrimp can have high amounts of bycatch and some interact with seafloor habitats. The Gulf of Mexico Fishery Management Council (Gulf Council) manages shrimp fisheries in federal waters, while the Florida Fish and Wildlife Conservation Commission (FWC) manages shrimp in state waters but has adopted the federal management measures. For example, Florida requires the use of federally approved bycatch reduction devices (BRDs) and turtle excluder devices (TEDs) in state waters. The Gulf Council s Shrimp Fishery Management Plan (FMP) was implemented in 1981 and has been amended 14 times. Federal regulations include effort limitations/permit requirements, www.sustainablefish.org 1

reporting requirements, mandatory observer coverage if selected, time-area closures to protect juvenile red snapper, gear restrictions and mandatory use of certified BRDs and TEDs. All permit holders must submit a vessel and gear characterization form each year, or permits will not be renewed. In addition, a portion of the fleet is randomly equipped with electronic logbooks each year to collect information on hours and geographic areas fished. Shrimp are bottom-dwellers, thus most fishing gear used to harvest shrimp comes in contact with the sea floor. Sea floor protection measures include closed areas and marine reserves to protect habitat and nursery areas of shrimp and other species. Otter trawl nets must be equipped with a weak link on the tickler chains, which is designed to break and prevent snagging on any hard substrates. Most gears used to harvest shrimp are indiscriminate and catch many species besides the targeted shrimp. In the late 1990s, the federal government implemented regulations requiring BRDs for finfish. One of the driving forces behind this requirement was the need to reduce the bycatch of juvenile red snapper, which inhabits many of the same offshore areas as brown shrimp and is severely overfished. Current regulations require all BRDs to be certified to reduce bycatch of finfish by 30% (by weight). Still, the currently used BRDs are not capable of the reductions required by the red snapper rebuilding plan, thus a substantial decrease in shrimp fishery effort from the 2001-2003 baseline has been required. Due to economic conditions and hurricane damage, the actual reduction in effort has exceeded the target. If, in the future, shrimping effort exceeds the reduction targets, seasonal area closures in the northern Gulf will go into effect to limit effort. Sea turtles, protected under the Endangered Species Act (ESA), are also a primary bycatch concern. In the 1980s principal attention was give to the Kemp s ridley sea turtle, classified as endangered, with more recent attention to the loggerhead, classified as threatened. After a period of advocacy from environmental groups, innovators within the fishing industry worked with government and academia to develop effective TEDs. Federal regulations implemented by NOAA Fisheries in the early 1990s require use of TEDs throughout the Gulf of Mexico and Atlantic waters. These regulations were enacted under the authority of the ESA, and thus apply to both state and federal waters (not limited to federal waters as are the federal fishery regulations). Federal regulations require that TEDs be 97% effective at releasing sea turtles. Coupled with protection of the known nesting grounds, a dramatic increase in Kemp s ridley sea turtles has occurred over the past 10-15 years and the shrimp fishery is not expected to cause an appreciable reduction in the likelihood of the survival or recovery of any sea turtle species. Nearly all of the shrimp from the Gulf of Mexico are consumed in the US and this fishery is one of the nation s most valuable. Yet domestically harvested shrimp account for only about 10% of national consumption, with the rest supplied mainly by farmed, imported shrimp. Over the last 10-15 years there has been a major decline in shrimp fishing effort due to high fuel prices, low shrimp prices, competition from imports, and hurricanes in the Gulf in 2005 and 2006. Annual harvest of pink shrimp in Florida ranges from 2-7 thousand metric tons (5-16 million pounds) and is worth $10-30 million. www.sustainablefish.org 2

Commercial Landings and Value of Pink Shrimp in Florida Landings (mt) 8,000 7,000 6,000 5,000 4,000 3,000 2,000 1,000 0 2002 2004 2006 2008 2010 Year $35,000 $30,000 $25,000 $20,000 $15,000 $10,000 $5,000 $0 Value (1,000 US Dollars) Pink Shrimp Landings Pink Shrimp Value Source: NOAA OST 2012 Problem Statement While both a traditional economic engine in the coastal communities of the Gulf of Mexico and a major supplier of shrimp to many markets, the shrimp fishery has also had to deal with the environmental implications of its harvesting methodology. A great number of improvements have been made to reduce the impact of the shrimp fishery on the environment, including mandatory TEDs and BRDs, area closures, and sea turtle nesting enhancement projects, but there are still areas for improvements in sustainability. Bycatch ratios are high in comparison to other fisheries. The average bycatch-to-shrimp ratio in the Gulf of Mexico is about 4:1, though slightly less in recent years, at about 3.7:1. In comparison, the South Atlantic shrimp fishery bycatch ratio is 2:1. In the Gulf, there is a high diversity of species caught as bycatch, and no single species dominates or is considered a main bycatch species. While government scientists believe that none of the most frequently caught species (Atlantic croaker, longspine porgy, and inshore lizardfish) are at risk due to bycatch mortality, there are no stock assessments for any of these species. Red snapper is not one of the most frequently captured species, especially not in the pink shrimp fishery, but is still a bycatch concern because of its depleted stock status, commercial importance, and the dual fishing mortality exerted by both the shrimp and directed red snapper fisheries. Approved BRDs vary in effectiveness and it is unclear which BRD(s) is/are most commonly used, because the results of the gear characterization forms are not publicly available. Observer coverage is the only source of bycatch characterization data but the overall level of coverage is low (1-3%). www.sustainablefish.org 3

Higher than normal numbers of sea turtle strandings were documented in 2010 and 2011, which led to increased monitoring and enforcement of TED compliance (NOAA 2012b). Initial monitoring surveys found lower compliance levels than the 97-99% compliance reported by Joint Enforcement Agreement patrols conducted by state natural resource management agencies. The two most concerning TED installation issues were a) steeper than allowed angle (making it difficult for small turtles to escape) and b) smaller than allowed opening (preventing large turtles from escaping). Other minor issues included excessive overlap of double-cover escape opening panel flaps, bar spacing in excess of the 4-inch maximum, improper flotation, and excessive escape panel flap length. A number of these compliance issues were traced back to specific net shops. Monitoring and enforcement patrols continued through the spring and summer of 2011. According to the federal government, the observed compliance and severity of violations improved and the documented violations became increasingly minor. Unfortunately TED compliance information is not publicly available and the magnitude of the decrease and shift in severity are not quantifiable. Federal regulations allow exemptions from TED requirements for skimmer trawls, pusher-head trawls, and wing nets (butterfly trawls), in lieu of limits on tow times. Compliance with these tow time provisions is unknown and virtually impossible to determine. Some of 2010-2011 turtle stranding mortality could have been a result of entrapment in these gears. In May 2012, NMFS proposed a new regulation that would withdraw the tow time requirement and require that all skimmer trawl, pusher-head trawl, and wing net (butterfly trawl) vessels use TEDs in their nets (NOAA 2012c). Florida state law requires the use of TEDs in skimmer trawls in state waters. Recommended Solutions Technical and regulatory solutions are available to continue to move the Gulf of Mexico shrimp fishery toward greater levels of sustainability. Sustainable Fisheries Partnership (SFP) initiated a Florida Pink Shrimp Fishery Improvement Project (FIP) in 2010. Current (2012) FIP participants include Publix and Cox Wholesale Seafood. In the early stages of the FIP, efforts focused on development of new, more efficient BRDs and transition to more fuel-efficient and habitat-friendly gear. Current objectives of the FIP include: 1. Make gear characterization information available. Without such information it is difficult to determine the extent of bycatch reduction. This information should be compiled and summarized by region/state and then made publicly accessible such that conservation-minded seafood buyers can support the fleets that are using the best performing BRDs. 2. Increase use of best performing BRDs. Table 1 lists currently certified bycatch reduction devices, effectiveness rates of excluding finfish, the associated shrimp loss, and the cost per device. The most effective BRD (Jones-Davis) is also the most expensive and not available for purchase. The two next most effective (both versions of the Composite Panel) are newly certified (as of May 2012) and most likely use of these www.sustainablefish.org 4

devices is not widespread. Preferential treatment in procurement specifications may be necessary to incentivize use of these new BRDs. Table 1: Performance and Cost of Bycatch Reduction Devices Approved for Use in the Gulf of Mexico BRD Type Percent reduction in finfish bycatch (by weight) Percent shrimp loss (by weight) Cost per BRD ($) Fisheye (< 9 from tie-off) 37.0 10.4 45 Jones-Davis 58.0 4.0 425 Modified Jones-Davis 33.1 3.2 250 Cone Fish Deflector 51.3 8.2 175 Composite Panel Square Mesh Panel Composite Panel 49.9 1.0 125 Sources: NERA 2008; NOAA Fisheries 2010; NOAA Fisheries 2011 3. Increase bycatch data collection. FIP participants will encourage the federal government to increase observer coverage or explore other options for real-time monitoring. 4. Improve TED compliance. FIP participants will request that information on enforcement efforts and compliance rates be made publicly accessible. Suppliers should require verification of proper TED installation from the fishing industry and may need to develop a third-party audit system. 5. Expand use of TEDs to all gear types. FIP participants should support proposed regulations to require use of TEDs in all types of shrimp nets, both inshore and offshore. The Role of Sustainable Fisheries Partnership Sustainable Fisheries Partnership (www.sustainablefish.org) (SFP) is a nonprofit, nongovernmental organization (NGO) based in the US under Internal Revenue Service Section 501(c)(3). The mission of Sustainable Fisheries Partnership is to maintain healthy ocean ecosystems, enhance fishing livelihoods and secure food supplies. SFP improves access to information to guide responsible seafood sourcing, and enhances the ability of seafood companies and partners to influence policies and management practices to improve fisheries. Currently, major seafood buyers and producers that are committed to sustainability in their sourcing may be advised not to purchase shrimp from the US Gulf of Mexico because they are rated yellow or red, or not certified as sustainable by prominent environmental groups. Trying to engage directly in a fishery, which may be thousands of miles away, is a daunting prospect for most organizations, especially when they have no in-house expertise on marine management. SFP helps to overcome this barrier by creating Fisheries Improvement Projects (FIPs) multi-stakeholder groups that include catchers, processors, and others with a stake in the fishery who work together to create and implement an improvement plan. SFP will facilitate www.sustainablefish.org 5

partnership building among supply chain stakeholders, act as secretariat (coordinating meeting logistics, note/record keeping, reporting, etc.), and provide information and strategic counsel. Ultimately this will be a private-sector initiative and the long-term goal is to transition the leadership of this FIP to the industry. The Role of Buyers and Suppliers Buyers and suppliers concerned with the long-term sustainability of their seafood products must leverage the power of the supply chain to urge or require improvements in seafood sustainability. Their role is to communicate the requirements for improvements in the Gulf of Mexico shrimp fishery back down the supply chain, encourage the fishing industry to participate in the FIPs, provide resources to enable FIP activities, and support FIP participants by purchasing their products. In addition, buyers may be able to lobby, or help find a congressional champion in the region, to help secure funds to increase observer coverage. For US retailers, wholesalers, and buyers this is a win-win proposition. Improvement in the sustainability of the Gulf of Mexico shrimp fishery will not only ensure the long-term health of the fishery and decreased environmental impacts, but also potentially produce a larger and higher quality product. We invite all US retailers, wholesalers, and buyers to participate in the process. The Role of the Fishing Industry Fishing industry support and participation is the core of the FIP. Many activities defined in the FIP workplan must be carried out by the fishing industry, or supported by the fishing industry during the research, assessment and management process. In addition, in-depth understanding of day-to-day operations of the fishing industry is integral to successful implementation of a FIP. While participation in the FIP is voluntary, a commitment to continuous improvement of the Gulf of Mexico shrimp fishery is essential. www.sustainablefish.org 6

References and Works Cited Gulf of Mexico Fishery Management Council (GMFMC). Shrimp Fishery Management Plans. Accessed online, August 2012, at www.gulfcouncil.org. Helies, Frank C. and Judy L. Jamison. 2009. Reduction Rates, Species Composition, and Effort: Assessing Bycatch within the Gulf of Mexico Shrimp Trawl Fishery. Gulf & South Atlantic Fisheries Foundation, Inc. NA07NMF4330125 (Foundation #101). MRAG Americas, Inc. 2010. Pre-Assessment of the Gulf of Mexico Shrimp Fishery. Prepared for Sustainable Fisheries Partnership. NERA Economic Consulting. 2008. A Cost-Benefit Analysis of Gear Replacement for Gulf Shrimp Fishermen. Accessed online, August 2012, at http://act.oceanconservancy.org/site/docserver/nerac-breportl.pdf?docid=4841. NMFS. 2011b. U.S. National Bycatch Report [W. A. Karp, L. L. Desfosse, S. G. Brooke, editors]. US Department of Commerce, NOAA Tech. Memo. NMFS-F/SPO-117E, 508 pp. NOAA. 2012a. Reinitiation of Endangered Species Act (ESA) Section 7 Consultation on the Continued Implementation of the Sea Turtle Conservation Regulations, as Proposed to Be Amended, and the Continued Authorization of the Southeast US Shrimp Fisheries in Federal Waters under the Magnuson-Stevens Act. Accessed online, August 2012, at http://sero.nmfs.noaa.gov/pr/shrimpfishery_seaturtle.htm. NOAA. 2012b. Proposed Rule to Require Mandatory Use of Turtle Excluder Devices in Skimmer Trawls, Pusher-Head Trawls, and Wing Nets (77 FR 27411). Accessed online, August 2012, at http://sero.nmfs.noaa.gov/pr/shrimpfishery_seaturtle.htm. NOAA Fisheries Office of Science and Technology (NOAA OST). Accessed online, September 2012, at www.st.nmfs.noaa.gov/st1/index.html. NOAA Fisheries Service. 2010. 2010 Update on the Results of Shrimp Trawl Bycatch Reduction Device Certification Tests Conducted in the Gulf of Mexico. 8 pp. NOAA Fisheries Service. 2011. Results of shrimp trawl bycatch reduction device certification tests conducted for a Composite Panel BRD with a Cone Fish Deflector. 7 pp. NOAA FishWatch. Profile for pink shrimp. Accessed online, September 2012, at www.fishwatch.noaa.gov. www.sustainablefish.org 7