North Pacific Fishery Management Council Update on salmon and halibut bycatch in groundfish fisheries Dan Hull, Chairman March 4, 2016 Presentation to SWAMC

Salmon and halibut bycatch Salmon and halibut (and crab and herring) are bycatch species in the groundfish fisheries that are defined as “prohibited species” Salmon and halibut (and crab and herring) are bycatch species in the groundfish fisheries that are defined as “prohibited species” By law, the fish must be avoided, and cannot be sold or retained (except for counting), although some salmon and halibut is donated to food banks By law, the fish must be avoided, and cannot be sold or retained (except for counting), although some salmon and halibut is donated to food banks The Council has implemented additional measures to reduce bycatch in the groundfish fisheries The Council has implemented additional measures to reduce bycatch in the groundfish fisheries Bycatch caps (also known as PSC limits, for “prohibited species catch”) Bycatch caps (also known as PSC limits, for “prohibited species catch”) Time/area closures (can be problematic as fixed closures are not responsive to changing environmental conditions) Time/area closures (can be problematic as fixed closures are not responsive to changing environmental conditions) The Council also encourages industry efforts to reduce bycatch through gear modifications and communication The Council also encourages industry efforts to reduce bycatch through gear modifications and communication e.g., salmon and halibut excluders for trawl nets e.g., salmon and halibut excluders for trawl nets

CURRENT MANAGEMENT OF CHINOOK AND CHUM BYCATCH IN THE BERING SEA POLLOCK FISHERY

Am. 91 BS Chinook bycatch program 2011: Established hard caps on bycatch and an industry incentive program Fishery closes if upper cap is reached (60,000) Fishery closes if upper cap is reached (60,000) Fishery is managed at lower cap level (~47,000) under incentive programs (vessel level closures) Fishery is managed at lower cap level (~47,000) under incentive programs (vessel level closures) If lower cap is exceeded more than 2 of 7 years, the upper cap is removed and only lower cap applies If lower cap is exceeded more than 2 of 7 years, the upper cap is removed and only lower cap applies At current bycatch levels (11, ,000) the incentive programs are critical to further bycatch reduction At current bycatch levels (11, ,000) the incentive programs are critical to further bycatch reduction

Additional provisions of BSAI Chinook Management Program 100% observer coverage 100% observer coverage Complete census of all salmon species by observers Complete census of all salmon species by observers Increased genetic sampling for stock of origin (both BSAI and GOA) Increased genetic sampling for stock of origin (both BSAI and GOA) Annual reports to Council on genetic stock of origin results from fishery Annual reports to Council on genetic stock of origin results from fishery Annual reports to Council on the effectiveness of the incentive programs (and third party audit) Annual reports to Council on the effectiveness of the incentive programs (and third party audit)

New action: changes recommended by Council in April Combined chum and Chinook program 2. Changes to incentive plan requirements More stringent in September/October More stringent in September/October Required excluder usage Required excluder usage 3. Lower bycatch caps in years of low Chinook abundance 4. Increased flexibility to avoid Chinook by allowing additional 5% of pollock quota to be harvested in winter season Previously split 40:60 Now 45:55 Previously split 40:60 Now 45:55

GENETIC STUDIES OF SALMON TAKEN AS BYCATCH (STOCK OF ORIGIN)

2014 stock distribution of Chinook bycatch in the BS pollock fishery 56% 18% 2% 52% 18% 14% 7% 4% Stock distribution (annual): Coastal Western Alaska stocks (incl middle Yukon) (52%) Coastal Western Alaska stocks (incl middle Yukon) (52%) North Alaska Peninsula (18%) North Alaska Peninsula (18%) British Columbia (14%) British Columbia (14%) West Coast US (7%) West Coast US (7%) Upper Yukon (4%) Upper Yukon (4%) Seasonal differences in stock composition A larger proportion of salmon from Upper Yukon, Coastal Western AK, and North AK Peninsula is intercepted in winter A larger proportion of salmon from Upper Yukon, Coastal Western AK, and North AK Peninsula is intercepted in winter

2014 stock distribution of chum bycatch in the BS pollock fishery Asian-origin: 56% Asian-origin: 56% Western Alaskan: 18% Western Alaskan: 18% Middle/Upper Yukon: 2% Middle/Upper Yukon: 2% 56% 18% 6 regional groupings of baseline chum salmon populations (from Vulstek et al 2012): East Asia (brown North Asia (red) Western Alaska (blue) Upper/Middle Yukon (green) Southwest Alaska (black) Eastern GOA/Pacific Northwest (purple) 2%

BSAI HALIBUT BYCATCH MANAGEMENT ACTIONS

Authority for halibut management is coordinated between the Council and the International Pacific Halibut Commission (IPHC) Authority for halibut management is coordinated between the Council and the International Pacific Halibut Commission (IPHC) IPHC is responsible for: IPHC is responsible for: Coastwide stock assessment (all halibut, in USA and Canada) Coastwide stock assessment (all halibut, in USA and Canada) Catch limits for directed halibut fisheries, and apportionment to IPHC management areas Catch limits for directed halibut fisheries, and apportionment to IPHC management areas Accommodates all sources of halibut mortality, from commercial catch, wastage, bycatch, and sport, charter, and subsistence catch Accommodates all sources of halibut mortality, from commercial catch, wastage, bycatch, and sport, charter, and subsistence catch Council is responsible in Alaska for: Council is responsible in Alaska for: Allocative decisions about harvest privileges Allocative decisions about harvest privileges Bycatch management in groundfish fisheries Bycatch management in groundfish fisheries PSC limits in GOA and BSAI Fishery Management Plans PSC limits in GOA and BSAI Fishery Management Plans Coordinated Management

Bering Sea Aleutian Islands Halibut bycatch actions June 2015: Council reduced PSC limits for all groundfish sectors in BSAI June 2015: Council reduced PSC limits for all groundfish sectors in BSAI New limits will be effective in 2016 New limits will be effective in 2016 Current PSC limit PSC limit reduction New PSC limit Amendment 80 cooperatives (catcher processors targeting flatfish, rockfish, Atka mackerel, Pacific cod) 2,325 mt-25%1,745 mt BSAI trawl limited access fisheries (pollock fishery, Pacific cod catcher vessel fishery) 875 mt-15%745 mt Longline fisheries (mostly Pacific cod catcher processors) 833 mt-15%710 mt CDQ fisheries 393 mt-20%315 mt TOTAL 4,426 mt-21%3,515 mt

Additional BSAI halibut items initiated Halibut Framework: ways to improve coordination between IPHC and Council (ongoing, review in April 2016) Halibut Framework: ways to improve coordination between IPHC and Council (ongoing, review in April 2016) Exploration of abundance-based halibut PSC limits in BSAI (workgroup initiated, discussion paper in April 2016) Exploration of abundance-based halibut PSC limits in BSAI (workgroup initiated, discussion paper in April 2016) Annual report by trawl flatfish fishery (Amendment 80) on fleet requirements to achieve reduced halibut bycatch (reviewed in December 2015) Annual report by trawl flatfish fishery (Amendment 80) on fleet requirements to achieve reduced halibut bycatch (reviewed in December 2015) Improved methodology for assessing halibut bycatch discard mortality rates (DMRs) in groundfish fisheries (discussion paper in April 2016) Improved methodology for assessing halibut bycatch discard mortality rates (DMRs) in groundfish fisheries (discussion paper in April 2016) Analysis of options to allow CDQs to lease IFQ halibut for benefit of community members in years with low directed halibut harvest (initial review in October 2016) Analysis of options to allow CDQs to lease IFQ halibut for benefit of community members in years with low directed halibut harvest (initial review in October 2016)

GOA TRAWL BYCATCH MANAGEMENT PROGRAM (IN DEVELOPMENT)

GOA bycatch actions Since 2012, the Council has reduced GOA Trawl bycatch limits (halibut) and created new bycatch limits (Chinook salmon) “Hard Caps” were set for a conservation purpose “Hard Caps” were set for a conservation purpose In some years hard caps close trawl fisheries, affecting: In some years hard caps close trawl fisheries, affecting: Fishing crews Fishing crews Processor employees Processor employees Local support businesses Local support businesses Local and State tax revenues Local and State tax revenues

GOA bycatch actions 2012: Set Chinook bycatch caps for GOA pollock trawl fisheries 25,000 Chinook 18,316 in Central GOA 6,684 in Western GOA 2013: Reduced halibut bycatch caps for GOA trawl and longline groundfish fisheries Phased-in reduction over 3 years for longline catcher vessels and trawl Phased-in reduction over 3 years for longline catcher vessels and trawl Trawl Limits reduced from 2,000 mt to 1,706 mt Trawl Limits reduced from 2,000 mt to 1,706 mt 2015: Set Chinook bycatch caps for all other GOA trawl fisheries 7,500 Chinook 7,500 Chinook 3,600 Catcher-Processors 3,900 Catcher Vessels 1,200 Rockfish Program CV 2,700 Non-Rockfish Program CV

2014 stock distribution of Chinook bycatch in the GOA fisheries 2014 is first year genetic samples were collected using a simple random protocol 2014 is first year genetic samples were collected using a simple random protocol Results indicate: Results indicate: British Columbia 43% British Columbia 43% West Coast US (WA/OR/CA) 35% West Coast US (WA/OR/CA) 35% Coastal SE AK 16% Coastal SE AK 16% NW GOA stocks 5% NW GOA stocks 5% 18% 2% 16% 43% 35% 5%

Purpose of the Program The Program’s goal is to help trawl stakeholders succeed within the bounds of the halibut and Chinook bycatch limits Contrasting approaches: “Alternative 1” – no action; management stays the same “Alternative 1” – no action; management stays the same “Alternative 2” – allocate groundfish & bycatch quotas to cooperatives “Alternative 2” – allocate groundfish & bycatch quotas to cooperatives “Alternative 3” – allocate bycatch quotas to cooperatives “Alternative 3” – allocate bycatch quotas to cooperatives “Alternative 4” can be paired with 2 or 3 – Sets aside a portion of quotas for uses that support community stability, or to address unintended consequences in the future Quotas placed under control of a regional Board of Directors, or Quotas placed under control of a regional Board of Directors, or Quotas held by NMFS and distributed in response to proposals by community/stakeholder groups Quotas held by NMFS and distributed in response to proposals by community/stakeholder groups

How it Could Work Harvesters and Processors can join cooperatives that manage a bycatch limit together Experience shows that cooperatives do a better job of avoiding halibut and Chinook than independent vessels Experience shows that cooperatives do a better job of avoiding halibut and Chinook than independent vessels Coordination Coordination Communication Communication Less Competitive Less Competitive Incentives Incentives Co-op plans specify measures to promote bycatch reduction, as well as value creation and other goals determined locally Co-op plans specify measures to promote bycatch reduction, as well as value creation and other goals determined locally The Council expects that vessels in cooperatives can do better than the bycatch limit (“hard cap”) in most years The Council expects that vessels in cooperatives can do better than the bycatch limit (“hard cap”) in most years

Contrasting Alts. 2 & 3 SIMILARITIES 100% observer coverage for all GOA trawl vessels 100% observer coverage for all GOA trawl vessels Harvesters have the option to join cooperatives, or else continue fishing under current regulations but with reduced bycatch limits Harvesters have the option to join cooperatives, or else continue fishing under current regulations but with reduced bycatch limits Processing plants are co-op members Processing plants are co-op members Option for plants to manage a portion of the cooperative’s bycatch quota Option for plants to manage a portion of the cooperative’s bycatch quota Co-ops jointly manage bycatch quotas, which can be used in any season and for any target fishery Co-ops jointly manage bycatch quotas, which can be used in any season and for any target fishery Co-ops submit annual plans for operation, quota use, and bycatch avoidance Co-ops submit annual plans for operation, quota use, and bycatch avoidance Consolidation limits Consolidation limits Option to reduce PSC limits Option to reduce PSC limits Pollock fishery Chinook bycatch limit reduced 25% Pollock fishery Chinook bycatch limit reduced 25% Halibut bycatch limits reduced 10%, 15%, 20%, or 25% Halibut bycatch limits reduced 10%, 15%, 20%, or 25% Option to shift seasonal pollock TAC towards the A/B season, when less salmon bycatch occurs Option to shift seasonal pollock TAC towards the A/B season, when less salmon bycatch occurs

Contrasting Alts. 2 & 3 MAJOR DIFFERENCES Allocations Allocations Alt 2 – groundfish and bycatch (Chinook salmon and halibut) Alt 2 – groundfish and bycatch (Chinook salmon and halibut) Based on a license’s catch history during qualifying years… bycatch quotas are based on historical groundfish catch, not historical bycatch use Based on a license’s catch history during qualifying years… bycatch quotas are based on historical groundfish catch, not historical bycatch use Alt 3 – bycatch only Alt 3 – bycatch only Based on several factors associated with a vessel Based on several factors associated with a vessel An “equal share” based on the number of vessels active in the fishery that year An “equal share” based on the number of vessels active in the fishery that year Dependence on GOA (relative to trawling in GOA + BSAI) Dependence on GOA (relative to trawling in GOA + BSAI) Is the vessel’s co-op signed onto an Inter-Cooperative Agreement? (Similar to BSAI pollock) Is the vessel’s co-op signed onto an Inter-Cooperative Agreement? (Similar to BSAI pollock) Transfer of quotas Transfer of quotas Alt 2 – Licenses & catch history can be sold; Bycatch quotas cannot be sold separately; Annual lease of groundfish quota is limited by use caps Alt 2 – Licenses & catch history can be sold; Bycatch quotas cannot be sold separately; Annual lease of groundfish quota is limited by use caps Alt 3 – Licenses can be sold; Annual lease of bycatch quota is limited by use caps Alt 3 – Licenses can be sold; Annual lease of bycatch quota is limited by use caps “Active participation” requirements to hold/retain quotas “Active participation” requirements to hold/retain quotas Alt 2 – Based on eligibility to purchase quota (vessel ownership or active crew member) Alt 2 – Based on eligibility to purchase quota (vessel ownership or active crew member) Alt 3 – Bycatch quota distributed annually (quota is not “owned); eligibility to use the co-op’s annual quota is determined by co-op bylaws Alt 3 – Bycatch quota distributed annually (quota is not “owned); eligibility to use the co-op’s annual quota is determined by co-op bylaws

UPCOMING COUNCIL MEETINGS

Council actions and timeline BSAI halibut: April 2016 meeting BSAI halibut: April 2016 meeting Abundance-based halibut PSC limits Abundance-based halibut PSC limits Council reviewing ways to index PSC limits to halibut abundance; early stages of development Council reviewing ways to index PSC limits to halibut abundance; early stages of development Discard mortality rates Discard mortality rates Council reviewing improvements to the methodology for assessing halibut discard mortality rates Council reviewing improvements to the methodology for assessing halibut discard mortality rates Salmon bycatch: reports only at April 2016 meeting Salmon bycatch: reports only at April 2016 meeting Reports from BS pollock fishery on results from 2015 fishery Reports from BS pollock fishery on results from 2015 fishery Reports on genetic stock composition for salmon bycatch in all groundfish fisheries Reports on genetic stock composition for salmon bycatch in all groundfish fisheries GOA trawl bycatch management GOA trawl bycatch management June 2016: review of monitoring, community provisions June 2016: review of monitoring, community provisions October 2016 (tentative): review of PSC limit reduction methodology October 2016 (tentative): review of PSC limit reduction methodology December 2016 (tentative): initial review of complete analysis December 2016 (tentative): initial review of complete analysis

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