The Long Voyage to Including Sociocultural Analysis in NOAA’s National Marine Fisheries Service

The United States has managed and analyzed its marine fisheries since 1871, and since 1970 via NOAA’s National Marine Fisheries Service (NMFS). As the primary directive moved from aiding fishermen in expanding their operations emphasizing conservation, the government over time recognized that management involves influencing people not fish, and has hired social scientists to complement the biologists who assess fish populations. This change has not always been smooth. We use archival documents and oral histories to trace the development of sociocultural analytic capabilities within NMFS and describe future plans for growing the program. Four points are made. First, NMFS has created the best developed social science program in NOAA. Second, established institutions change slowly; achieving the social science presence in NMFS has taken over 25 years. Third, change needs visionaries and champions with both tenacity and opportunity. Fourth, social science data collection and research helps in making fishery management decisions, but they have also been useful in evaluating the impact and helping with the recovery from Hurricane Katrina. Good work finds other uses.

The National Marine Fisheries Service’s National Bycatch Strategy

The National Marine Fisheries Service (NMFS) launched its National Bycatch Strategy (NBS) in March 2003 in response to the continued fisheries management challenge posed by fisheries bycatch. NMFS has several strong mandates for fish and protected species bycatch reduction, including the Magnuson-Stevens Fishery Conservation and Management Act, the Endangered Species Act, and the Marine Mammal Protection Act. Despite efforts to address bycatch during the 1990’s, NMFS was petitioned in 2002 to count, cap, and control bycatch. The NBS initiated as part of NMFS’s response to the petition for rulemaking contained six components: 1) assess bycatch progress, 2) develop an approach to standardized bycatch reporting methodology, 3) develop bycatch implementation plans, 4) undertake education and outreach, 5) develop new international approaches to bycatch, and 6) identify new funding requirements. The definition of bycatch for the purposes of the NBS proved to be a contentious issue for NMFS, but steady progress is being made by the agency and its partners to minimize bycatch to the extent practicable.

Atlantic Blue Marlin, Makaira nigricans, and White Marlin, Tetrapterus albidus, Bycatch of the Japanese Pelagic Longline Fishery, 1960–2000

ABSTRACT—Since the late 1950’s, a multi-national longline fishery has operated throughout the Atlantic Ocean to supply the growing global demand for tunas (Scombridae) and swordfish, Xiphias gladius. Two species caught as bycatch include Atlantic blue marlin, Makaira nigricans, and white marlin, Tetrapterus albidus, referred to in this paper as “Atlantic marlin.” Pelagic longlining has consistently been the principal source of adult mortality for both species, which are currently depleted and have been so for more than two decades. In this paper, we examined aspects of the Atlantic marlin bycatch of the Japanese pelagic longline fishery from 1960 to 2000. Temporal and spatial patterns in effort, target catch (species combined), marlin bycatch, marlin catch-per-unit-effort (nominal CPUE), and ratios of marlin bycatch to target catch (B: T ratios) were analyzed. An objective was to reveal changes, if any, in marlin bycatch associated with the fishery’s target species “switch” (ca. 1980–87) from mostly surface-associated tunas to mostly the deeper-dwelling bigeye tuna, Thunnus obesus. The highest values of all variables examined occurred during the 1960’s and then fell by the second half of that decade. Since 1970, mean levels of fishing effort, target fish catches, and blue marlin landings have increased significantly, while blue marlin CPUE and B:T ratios have remained relatively stable. Concurrently, white marlin landings, CPUE, and B:T ratios have all declined. While results suggest the fishery’s target species change may have been a factor in lowering white marlin bycatch, the same cannot be said for blue marlin. Relative increases in blue marlin B:T ratios off the northeastern coast of South America and in the wider eastern Atlantic are cause for concern, as are continuing trends of CPUE decline for white marlin in this data set as well as others.

Recreational Fisheries in Biscayne National Park, Florida, 1976–19

Recreational creel survey data from 28,923 intercepts collected from Biscayne National Park, Florida and surrounding waters were analyzed for January 1976 through July 1991, prior to disruptions caused by Hurricane Andrew in 1992. A total of 261,268 fish and shellfish representing 170 species or higher taxa were recorded. The average trip landed 9.03 fish and/or shellfish. Mean annual landings per angler were 4.77 fish/angler/trip (from 3.8 in 1991 to 5.83 in 1981) and dropped significantly for each of the 2 years following Florida's adoption of mutiple new minimum size limits in 1985 and 1990. The relative contribution to total numerical landings by recreational party type were: skilled anglers (34.0%), food (19.8%), family (14.5%), novice (11.5%), spearfishing (10.3%), lobstering (9.6%), and other (0.3%). FIve species or higher taxa accounted for more than 50% of total landings by number: white grunt, Haemulon plumieri, 15.8%; spiny lobster, Panulirus argus, (10.6%; gray snapper, Lutjanus griseus, 10.6%; unidentified grunts, Haemulon spp., 7.3%; and dolphin, Coryphaena hippurus, 6.6%. An average of 4.39 fish or shellfish were reported released per trip. Five taxa accounted for 67% of all releases. Lobster divers reported the highest average release rate (5.73 per trip) and spearfishing the lowest (0.70 per trip). The ratio of releases to landings was 0.49:1 for all taxa, but ranged from 0.03:1 for dolphin to 1.19:1 for unidentified grunts. Spearfishing accounted for 12.0% of the total fishing trips sampled but only 10.3% of the total number organisms landed and 7.6% of all organisms caught. Hogfish, Lachnolaimus maximus, accounted for 49% if total spearfishing landings (13,286 of 27,015) and 84.3% of total 15,762 hogfish landed.

Harvest History of Belugas, Delphinapterus leucas, in Cook Inlet, Alaska

Belugas, Delphinapterus leucas, in Cook Inlet, Alaska, represent a unique and isolated marine mammal population that has been hunted for a variety of purposes since prehistoric times. Archeological studies have shown that both Alutiiq Eskimos and Dena'ina Atabaskan Indians have long utilized many marine resources in Cook Inlet, including belugas. Over the past century, commercial whaling and sport hunting also occurred periodically in Cook Inlet prior to the Marine Mammal Protection Act of 1972 (MMPA). During the 1990's, the hunting mortality by Alaska Natives apparently increased to 40-70 whales per year, which led to the decling of this stock and its subsequent designation in 2000 as depleted under the MMPA. Concerns about the decline of the Cook Inlet stock resulted in a voluntary suspension of the subsistenc hunt by Alaska Natives in 1999. The difficulty in obtaining accurate estimates for the harvest of these whales is due to the inability to identify all of the hunters and, in turn, the size of the harvest. Attempts to reconstruct harvest records based on hunters' recollections and interviews from only a few households have been subject to a wide degree of speculation. To adequately monitor the beluga harvest, the National Marine Fisheries Service established marking and reporting regulations in October 1999. These rules require that Alaska Natives who hunt belugas in Cook Inlet must collect the lowere left jaw from harvested whales and complete a report that includes date and time of the harvest, coloration of the whale, harvest location, and method of harvest. The MMPA was amended in 2000 to require a cooperative agreement between the National Marine Fisheries Service and Alaska Native organizations before hunting could be resumed.

The Origins and Early History of the Steamer Albatross, 1880–18

Spencer Fullerton Baird (Fig. 1), a noted systematic zoologist and builder of scientific institutions in 19th century America, persuaded the U.S. Congress to establish the United States Commission of Fish and Fisheries1 in March 1871. At that time, Baird was Assistant Secretary of the Smithsonian Institution. Following the death of Joseph Henry in 1878, he became head of the institution, a position he held until his own demise in 1887. In addition to his many duties as a Smithsonian official, including his prominent role in developing the Smithsonian’s Federally funded National Museum as the repository for governmental scientific collections, Baird directed the Fish Commission from 1871 until 1887. The Fish Commission’s original mission was to determine the reasons and remedies for the apparent decline of American fisheries off southern New England as well as other parts of the United States. In 1872, Congress further directed the Commission to begin a large fish hatching program aimed at increasing the supply of American food f

A Decline in Starfish, Asterias forbesi, Abundance and a Concurrent Increase in Northern Quahog, Mercenaria mercenaria, Abundance and Landings in the Northeastern United States

The abundance of the common starfish, Asterias forbesi, fluctuates widely over time. The starfish is a predator of pre-recruit northern quahogs, Mercenaria mercenaria. During the 1990’s, starfish became scarce in Raritan Bay and Long Island Sound. Quahog populations concurrently erupted in abundance and quahog landings have risen sharply in both locations. The extensive scale of this observation would seem to imply a cause and effect; at the least, both populations may be responding differently to a large scale exogenous factor.

The Development and Decline of Hawaii's Skipjack Tuna Fishery

The pole-and-line fishery for skipjack tuna, Katsuwonus pelamis, was the largest commercial fishery in Hawaii until its decline in the 1970's and 1980's. The development and decline of the fishery were strongly affected by fish availability and marketing. A sustained drop in the availability of large fish in the mid-1970's appears to have been due in part to a sustained environmental change. Availability of large fish subsequently increased, but the fishery continued its decline owing to low profitability and lack of markets. The tuna cannery in Honolulu that fostered the fishery's expansion in the 1930's closed in 1984. Unless efforts to increase the marketf or skipjack tuna become effective, landings will probably remain at current levels of about 1,000 metric tons per year. The existing pole-and-line fleet may continue to decline with age, and the local market may eventually be supplied by other fishing methods (e.g., trolling), by new vessels, or by imports.

The National Marine Fisheries Service Habitat Conservation Efforts in Louisiana, 1980 Through 1990

Data quantifying various aspects of the Corps of Engineers wetland regulatory program in Louisiana from 1980 through 1990 are presented. The National Marine Fisheries Service (NMFS) habitat conservation efforts for this time period are described and averages involved delineated. From 1980 through 1990, NMFS reviewed 14,259 public notices to dredge, fill, or impound wetlands in Louisiana and provided recommendations to the Corps on 962 projects which proposed to impact over 600,000 acres of tidally influenced wetlands. NMFS recommended that impacts to about 279,000 acres be avoided and that more than 150,000 acres of compensatory mitigation be provided. During this period, marsh management projects proposed impounding over 197,000 acres of wetlands. On a permit by permit basis, 43% of NMFS recommendations were accepted, 34% were partially accepted, and 23% were rejected.

National Marine Fisheries Service Habitat Conservation Efforts in the Southeastern United States for 1988

Dataq uantifying the area of habitat affected by Federal programs that regulate development in coastal zones of the southeastern United States are provided for 1988. The National Marine Fisheries Service (NMFS) made recommendations on 3,935 proposals requiring Federal permits or licenses to alter wetlands. A survey of 977 of these activities revealed that 359,876 acres of wetlands that support fishery resources under NMFS purview were proposed for some type of alteration or manipulation. Almost 95 percent of this acreage was for impounding andl/or manipulation of water levels in Louisiana marshes. The NMFS did not object to alteration of 173,284 acres and recommended the conservation of 186,592 acres. To offset habitat losses, 1,827 acres of mitigation were recommended by the NMFS or proposed by applicants and/or the Corps of Engineers (COE). From 1981 to 1988 the NMFS has provided in depth analyses on 8,385 projects proposing the alteration of at least 656,377 acres of wetlands. A follow-up survey on the disposition of 339 permits handled by the COE during 1988 revealed that the COE accepted NMFS recommendations on 68 percent. On a permit-by-permit basis, 13 percent of NMFS recommendations were partially accepted, 17 percent were completely rejected, and 2 percent were withdrawn. The permit requests tracked by the NMFS proposed the alteration of 2,674 acres of wetlands. The COE issued permits to alter 847 acres or 32 percent of the amount proposed.

Políticas imigratórias e as instituições burocráticas no governo Vargas (1930-1945)

O respectivo trabalho tem como objetivo destacar o desenvolvimento das políticas imigratórias e a sua repercussão no cotidiano do imigrante, entre os anos de 1930 e 1945. Nesse período, salientamos as políticas de Estado e suas respectivas mudanças, alinhadas ao contexto histórico, no tocante a seleção dos imigrantes desejáveis e indesejáveis. A evolução do aparelhamento estatal, com a criação e adaptação de instituições repressivas, jurídicas e burocráticas, é ponto fundamental para compreender a relação do Estado com o imigrante. Além disso, vale destacar que a imagem do estrangeiro como um problema de segurança nacional era constantemente reforçada pela retórica oficial do Estado. Assim, a própria sofisticação das estruturas organizacionais confluíam para certo afastamento das instituições do poder central, resultando em maior autonomia nas decisões e conseqüente descenso no rigor do julgamento sobre os imigrantes. Dessa forma, se faz necessária uma análise crítica sobre o contexto histórico, captando o sistema estatal como algo heterogêneo, a fim de compreender as nuanças nas políticas e ações do Estado, bem como o papel do imigrante nesse processo.

The NRA's role in wetland conservation

This is the NRA's role in wetland conservation report produced by the National Rivers Authority in 1995. This document is the third of a series of three R&D Notes produced as part of an integrated research programme addressing aspects of the NRA's role in wetland management and conservation. Chapter 1 considers the nature of the wetland resource and its definition. Chapter 2 presents the NRA's current legislative and policy framework relating to its role in wetland conservation. National and international legislation and agreements are considered, and particular attention is afforded to the potential implications of the 'Habitats Directive'. Chapter 4 presents key examples of operational casework involving wetlands. Differences in approach and external perceptions of the NRA's current and likely future role in wetland conservation are discussed within Chapter 5. Other issues highlighted in this report are: policy guidance required on NRA’s role in land drainage; standard of flood defence service for wetlands; cost-benefit analysis; strategies for halting and reversing the decline and degradation of wetland resource; and Catchment Management Planning.

The Rivers Avon & Erme SAP Consultation Document

This is the Rivers Avon & Erme Salmon Action Plan Consultation document produced by the Environment Agency in 2003. This document is part of a national initiative to produce action plans for the management of all the main salmon rivers of England and Wales by 2003. The aim of this plan is (i) to assess the status of the salmon stocks and fisheries of the rivers Avon and Erme - including the use of Conservation Limits as part of this process, (ii) to identify factors which may limiting stock and fishery performance and (iii) to propose remedial measures address these factors. The report pays attention on the external consultation of the Rivers Avon & Erme Salmon Action Plan (SAP). While the stocks of both rivers have exceeded their respective conservation limits occasionally in individual years, only the Erme has achieved a period of statistical compliance since 1993. It is possible that this situation is largely normal, due to the steep nature of the rivers, obstructions to migration and dependence on suitable flow conditions occurring at the right time of year. The decline of the spring-running component of the stocks has left the populations dependent on autumn flows for the success of the late running component. Actions required to improve compliance with Conservation Limits are proposed and prioritised. The urgent actions relate to the need to improve the consistency with which adequate numbers of salmon reach and utilise fully all the accessible areas of the river systems. This document is intended to be dynamic, with opportunities for review occurring at regular intervals. For example, as the science of fisheries management improves, particularly in the setting of Conservation Limits, so the targets may be altered to reflect any improved methodology.

The River Axe SAP Consultation Document

This is the River Axe Salmon Action Plan Consultation document produced by the Environment Agency in 2003. The report pays attention on the external consultation of the River Axe Salmon Action Plan (SAP). This strategy represents an entirely new approach to salmon management within the UK and introduces the concept of river-specific salmon spawning targets as a salmon management tool. This document is part of a national initiative to produce action plans for the management of all the main salmon rivers of England and Wales by 2003. The aim of this plan is (i) to assess the status of the salmon stocks and fisheries of the River Axe - including the use of Conservation Limits as part of this process, (ii) to identify factors which may be limiting stock and fishery performance and (iii) to propose remedial measures address these factors. The salmon stock of the River Axe was apparently in a healthy state in the 1950s, supporting net and rod fisheries with average annual catches of around 100 and 50 fish respectively. Catches declined through the 1970s and 1980s to the extent where no salmon were recorded in the late 1980s and early 1990s. This decline was probably due largely to the effects of agricultural pollution, which virtually extinguished the salmon stock of the River Axe. Water quality has subsequently improved, but has deteriorated again in recent years.

The River Taw SAP Consultation Document

This is the River Taw Salmon Action Plan Consultation document produced by the Environment Agency in 2000. The report pays attention on the external consultation of the River Taw Salmon Action Plan (SAP). This approach to salmon management within the England and Wales introduces the concept of river-specific Conservation Limits as a method of assessing the status of the salmon stock. The River Taw Salmon Action Plan (SAP) includes a description of the current status of the rod and net fisheries and historical trends. The Taw salmon stock has declined since the 1960s and is currently failing to meet the spawning target. The decline in the spring fish component has accounted largely for the overall decrease in stocks. The reasons for the decline are unclear, but the spring fish problem is recognised as a national issue. The rate of survival over the marine phase has reduced in recent years for both the grilse and MSW components. This is undoubtedly a contributory factor, which may now constrain stocks to lower levels than have existed historically.