7. 0 ENVIRONMENTAL CONSEQUENCES OF ALTERNATIVES CONSIDERED
7.1 Alternatives for Analysis: Pelagic Longline
Requirements
7.2 Alternatives for Analysis: Shark Gillnet
Requirements
7.3 Alternatives for Analysis: General Requirements
(bycatch mortality measures for all gear types)
7.4 Summary of Direct, Indirect, and Cumulative
Impacts
7. 0 ENVIRONMENTAL CONSEQUENCES OF ALTERNATIVES CONSIDERED
National standard (NS) 9 states that:
Conservation and management measures shall, to the extent practicable:
(1) Minimize bycatch; and
(2) To the extent bycatch cannot be avoided, minimize the mortality of
such bycatch.
Reducing bycatch, bycatch mortality, and incidental catch in HMS fisheries, particularly
the Atlantic pelagic longline fishery, was identified in the HMS FMP as a critical
management goal that needed to be addressed pursuant to this NS. Specifically,
an objective of the HMS FMP is to "minimize, to the extent practicable, bycatch
of living marine resources and the mortality of such bycatch that cannot be avoided
in the fisheries for Atlantic tuna, swordfish, and sharks." The HMS FMP and a
final rule published on August 1, 2000 (65 FR 47214), provide detailed discussions
of bycatch and incidental catch issues associated with the various HMS commercial
and recreational fisheries. Further, these documents also note that additional
actions beyond those included in the HMS FMP or final rule would be necessary
to address these bycatch, bycatch mortality and incidental catch concerns. Under
ESA, the June 14, 2001, BiOp requires NOAA Fisheries to further reduce bycatch
and bycatch mortality of sea turtles in HMS fisheries. The following sections
evaluate a number of alternatives to meet this goal.
7.1 Alternatives for Analysis: Pelagic Longline Requirements
Alternative 1 (Final Action) Close the NED area to fishing with pelagic longline
gear on board (BiOp Requirement)
This action closes the NED area (20 to 60o W, 35 to 55o
N) to all Federally permitted vessels, or those required to be permitted for HMS,
with pelagic longline gear on board. The need for a closure will be reevaluated
in spring 2004 following the completion of a three year experimental fishery that
began in 2001.
Population and Ecological Effects Due
to Changes in the Bycatch of Sea Turtles
Observer and logbook data from pelagic longline vessels in the NED area in the
third and fourth quarters (July to December) indicate high levels of sea turtle
bycatch over the past several years. For example, based on logbook data from 1997
to 1999, closing the NED area for the entire year will reduce the number of loggerhead
and leatherback turtles captured in this fishery by 76 percent and 65 percent,
respectively, assuming no redistribution of the fishing effort displaced out of
the NED. Even assuming that all of the fishing effort that occurred in the NED
area shifts into the adjacent area, the northeast coast statistical reporting
(NEC) area, which also has a relatively high bycatch rate, the number of takes
per year will still be reduced by 67 percent for loggerheads and 58 percent for
leatherbacks, based on the logbook data (Table 7.1). Additionally, Hoey and Moore
(1999) stated that in many cases, two or more sea turtles have been caught per
longline set in the NED area, which indicates that pelagic longline fishing in
this area poses a potentially greater risk to listed species of sea turtles than
pelagic longline fishing in other areas (where multiple sea turtle takes per set
are less frequent). Hoey and Moore (1999) found that the NED area was the only
observed area where four or more sea turtles were caught on a single set, and
that 19 sets caught three sea turtles per set and 22 sets caught two sea turtles
per set contrasted to the mid-Atlantic bight statistical reporting (MAB) and NEC
areas where three sets caught three sea turtles per set, and 11 sets caught two
sea turtles per set.
Table 7.1 The estimated percent reductions
of loggerhead and leatherback sea turtles interactions for the NED area closure
under the no effort redistribution and effort redistribution models. Source:
Logbook reports from 1997 through 1999.
Month |
Number of
leatherback
sea turtles
reported
caught in
NED area |
Number of
loggerhead
sea turtles
reported
caught in
NED area |
Percent reduction
of leatherback sea
turtles |
Percent reduction
of loggerhead sea
turtles |
Percent reduction if all the
effort in the NED area goes
to the NEC area |
No
effort
redistr. |
Effort
redistr. |
No
effort
redistr. |
Effort
redistr. |
Leatherback |
Loggerhead |
Jan. |
0 |
0 |
0.00 |
0.00 |
0.00 |
0.00 |
0.00 |
0.00 |
Feb. |
0 |
0 |
0.00 |
0.00 |
0.00 |
0.00 |
0.00 |
0.00 |
Mar. |
0 |
0 |
0.00 |
0.00 |
0.00 |
0.00 |
0.00 |
0.00 |
Apr. |
0 |
0 |
0.00 |
0.00 |
0.00 |
0.00 |
0.00 |
0.00 |
May |
1 |
6 |
0.27 |
0.27 |
0.47 |
0.47 |
0.27 |
0.46 |
Jun. |
18 |
56 |
4.84 |
4.48 |
4.42 |
4.09 |
3.94 |
1.90 |
Jul. |
81 |
473 |
21.77 |
21.30 |
37.30 |
36.19 |
21.02 |
33.25 |
Aug. |
60 |
137 |
16.13 |
15.20 |
10.80 |
10.22 |
13.47 |
8.93 |
Sep. |
43 |
140 |
11.56 |
10.90 |
11.04 |
10.70 |
9.56 |
10.41 |
Oct. |
37 |
154 |
9.95 |
9.79 |
12.15 |
11.97 |
9.37 |
11.53 |
Nov. |
1 |
2 |
0.27 |
0.22 |
0.16 |
0.14 |
0.27 |
0.14 |
Dec. |
0 |
0 |
0.00 |
0.00 |
0.00 |
0.00 |
0.00 |
0.00 |
Total |
241 |
968 |
64.78 |
62.51 |
76.34 |
74.81 |
57.90 |
66.62 |
Changes in the Catch of Other Species
and the Resulting Population and Ecosystem Effects
Initially, the closure may result in fewer target and bycatch species, such as
swordfish, blue sharks, and sea turtles, being captured by pelagic longlines.
The NED area is one of the highest areas of blue shark discards for U.S. fishermen
and has the greatest incidence of sea turtles interactions. However, if the U.S.
vessels are not fishing in the NED area, vessels of the international fleet may
begin fishing in that area, which could result in the same or increased levels
of bycatch of other species. As international vessels are not known to practice
the same conservation measures that the United States has implemented, greater
ecological harm may befall the impacted species and associated ecosystem if foreign
vessels move to the NED area.
Effects on Marine Mammals and Seabirds
The Atlantic pelagic longline fishery is considered a Category I fishery under
the MMPA. In 2000, there were 14 observed takes of marine mammals by pelagic longlines.
This number has been extrapolated out to an estimated 403 mammals fleet-wide (32
common dolphin, 93 Risso's dolphin, 231 pilot whale, 19 whale, 29 pygmy sperm
whale) (Yeung, 2001). The NED area accounted for only 23 of these takes. By closing
the NED area, NOAA Fisheries may redistribute fishing effort into areas of higher
marine mammal concentrations.
Gannetts, gulls, greater shearwaters, and storm petrels are occasionally hooked
by Atlantic pelagic longlines (Table 5.4). These species and all other seabirds
are protected under the Migratory Bird Treaty Act. Seabird populations are often
slow to recover from excess mortality as a consequence of their low reproductive
potential (one egg per year and late sexual maturation). The majority of longline
interactions with seabirds occur as the gear is being set. The birds eat the bait
and become hooked on the line; the line sinks and the birds are subsequently drowned.
Since 1992, a total of 92 seabird interactions have been observed, with 67 seabirds
observed killed, in the Atlantic pelagic longline fishery. Most of these interactions
occurred in the NEC and MAB areas (Table 5.4). There were no interactions in the
NED areas. Based on this limited information and the level and location of effort
redistribution, closing the NED area could slightly increase the incidental capture
of seabirds in the pelagic longline fisheries if the NED vessels relocated their
fishing effort to the NEC or MAB areas.
Effects on Essential Fish Habitat
The HMS FMP and the Billfish Amendment state that Atlantic HMS occupy pelagic
oceanic environments, which is the general operational range of the U.S. Atlantic
pelagic longline fishery. The HMS FMP describes habitat damage by pelagic longlines
as negligible to the pelagic environment. Area closures to pelagic longline gear
are not anticipated to have a negative effect on the EFH for Atlantic HMS.
Changes in Fishing, Processing, Disposal,
and Marketing Costs
A closure of the NED area could result in changes in fishing, processing, marketing
practices, and costs because effort could be redistributed to other areas and
fishermen might sell their catch to previously unknown dealers. As shown in Larkin
et al. (2000) and Porter et al. (2001) fishing costs vary depending
on the area fished. Thus, depending on the area NED area fishermen move to, fishing
costs could stay relatively the same (e.g., if they move to the Caribbean) or
they could decrease (e.g., they move to the NEC). However, the net revenues of
the trips in all areas, except the Caribbean, are lower than the net revenues
in the NED area. Thus, NOAA Fisheries expects that NED area fishermen would move
to the Caribbean where net revenues are similar to NED area net revenues.
Because some fishermen currently have strong financial and loyalty links to their
dealers, closing the NED area could affect both dealers and fishermen economically
and socially. The long-standing relationships between certain vessel operators
and dealers at specific locations can provide financial benefits to both parties.
Closing the NED area, therefore, could convey reduced certainty to dealers (supply
of raw product) and a lack of a credit source (or other services) for vessel operators.
This is especially true for dealers of NED area fishermen because NED area fishermen
land such a high percent of the total U.S. swordfish catch. Some NED area fishermen
might continue to sell to their original buyer; however, transport costs for the
catch might increase and the amount of fish landed might decrease.
The secondary processing firms are not likely to be affected as much by any of
the closure alternatives if they currently depend on imported swordfish or tunas
throughout the year. If they do not currently work with these imported species,
it is possible they would be able to replace their domestic fish supply with imports
or with fish caught in open areas. Most of these firms handle species caught in
other fisheries as well, which also provides them some flexibility.
Changes in Fishing Practices and Behavior
of Fishermen
As a result of a NED area closure, pelagic longline fishermen might: 1) stop fishing
for HMS and sell their limited access permits for shark, swordfish, and tunas
and possibly their vessel or 2) fish for HMS in an open area. Because of their
size, the NED area vessels could move to any location reasonably safely. Additionally,
because of their size, these vessels could take longer trips than the vessels
that have traditionally fished in those areas. Furthermore, because there are
so few NED area vessels, their movement to other areas would be unlikely to cause
any further crowding on traditional fishing grounds in other areas.
In the short-term, NOAA Fisheries hopes that eligible vessels that have traditionally fished the
NED area will participate in the three year experiment. The purpose of the experiment is to test
different fishing practices to reduce interactions and mortality of sea turtles in the pelagic
longline fleet. The results of the experiment could alter fishing practices and behavior of all
pelagic longline fishermen in the long-term.
Changes in Research, Administration,
and Management Effectiveness
The closure of the NED area and subsequent experiment in the NED area will increase
research, administration, and enforcement costs, due largely to evaluating and
monitoring the closure and running the experiment. At the moment, the primary
mechanism for monitoring pelagic longline activity is fly overs, at sea boardings,
and visits to the dock. However, depending on the result of an ongoing lawsuit,
NOAA Fisheries hopes to increase monitoring of the pelagic longline fleet with
the implementation of a Vessel Monitoring System (VMS) program as described in
the HMS FMP and a remand document submitted to the court. Implementing a fleet-wide
VMS program has substantial initial administration and enforcement costs; however,
once the program is established, its capabilities will allow for more effective
use of limited assets to enforce closed areas. Additionally, depending on the
results of the three year experiment, the NED area may be re-opened. This would
reduce enforcement and research costs to their current levels.
Changes in the Economic, Social, or Cultural
Value of Fishing Activities and Non-Consumptive Uses of Fishery Resources
Fewer than 20 vessels fish in the NED area in any given year (Table 7.2). In 1999,
out of 224 vessels that reported using pelagic longline gear, 10 fished in the
NED. In 2000, out of the 171 vessels that reported using pelagic longline gear,
13 vessels fished in the NED. However, these few vessels land a significant portion
of the swordfish by the U.S. pelagic longline fleet. In 1998, the 15 vessels fishing
in the NED area landed 19.8 percent of all the swordfish landed by U.S. pelagic
longline fishermen. In 1999, the 10 vessels in the NED area landed 18.3 percent
of all the swordfish landed by U.S. pelagic longline fishermen. In 2000, the 13
vessels in the NED area landed 24.7 percent of all the swordfish landed by U.S.
pelagic longline fishermen (Cramer 2001). Thus, although few fishermen actively
participate in the NED area each year, the fishermen that are active in the NED
area report landing a substantial amount of the swordfish relative to the entire
fleet and closing the area could reduce the amount of domestic swordfish available
for consumption if the supply shortfall could not be made up from other fishing
areas or through increased imports.
Table 7.2 The number of swordfish and tunas
caught (kept and discarded) in 1998 and 1999. Source: Cramer and Adams,
2001
Area |
Year |
Swordfish |
Yellowfin
tuna |
Bigeye
tuna |
Bluefin
tuna |
Albacore
tuna |
Number
of vessels |
CAR |
1998 |
5,269 |
319 |
386 |
1 |
205 |
30 |
1999 |
3,171 |
91 |
235 |
2 |
120 |
18 |
GOM |
1998 |
12,131 |
37,623 |
415 |
173 |
82 |
98 |
1999 |
12,684 |
59,050 |
507 |
319 |
104 |
89 |
FEC |
1998 |
14,206 |
996 |
2,916 |
54 |
742 |
69 |
1999 |
16,789 |
1,589 |
2,767 |
63 |
496 |
53 |
SAB |
1998 |
19,974 |
1,656 |
92 |
16 |
93 |
53 |
1999 |
19,638 |
5,658 |
118 |
14 |
47 |
45 |
MAB |
1998 |
8,275 |
8,451 |
6,592 |
934 |
3,905 |
64 |
1999 |
7,745 |
13,278 |
11,255 |
202 |
5.566 |
68 |
NEC |
1998 |
5,921 |
4,691 |
5,415 |
312 |
1,512 |
40 |
1999 |
4,199 |
3,736 |
4,666 |
202 |
1,425 |
39 |
NED |
1998 |
15,677 |
96 |
1,552 |
27 |
103 |
15 |
1999 |
13,877 |
13 |
1,063 |
54 |
116 |
10 |
SAR |
1998 |
159 |
29 |
219 |
24 |
278 |
9 |
1999 |
208 |
162 |
45 |
4 |
49 |
4 |
NCA |
1998 |
4,495 |
150 |
278 |
3 |
332 |
12 |
1999 |
2,253 |
76 |
172 |
0 |
151 |
9 |
TUN |
1998 |
1,117 |
722 |
784 |
0 |
97 |
12 |
1999 |
534 |
291 |
279 |
0 |
13 |
9 |
TUS
|
1998 |
4,431 |
956 |
656 |
0 |
31 |
11 |
1999 |
4,856 |
532 |
1,614 |
0 |
42 |
8 |
Total
|
1998 |
91,655 |
55,689 |
19,305 |
1,544 |
9,380 |
210 |
1999 |
85,954 |
84,476 |
22,721 |
860 |
8,129 |
193 |
This reduction in swordfish landings could also affect dealers, especially those
who are supplied by the vessels fishing in the NED area, who as a result of the
closure would receive approximately 20 percent fewer swordfish to process. Bait
houses and equipment suppliers would not be affected as much as dealers or fishermen
because, in the worst case scenario, only 10 to 20 vessels would go out of business
as a result of the closure of the NED area. Presumably, bait houses and equipment
suppliers rely on more than 10 to 20 vessels to remain in business, although NOAA
Fisheries realizes that these 10 to 20 vessels, on average, probably require more
bait and equipment than many other vessel types. Although domestic swordfish landings
could decrease, U.S. consumers would not likely be affected because the United
States already imports large amounts of swordfish each year from other countries
(13,842,970 kg in 1999, 14,314,075 kg in 2000, NOAA Fisheries, 2002) and importers
would likely expand their business depending on demand.
In general, gross and net revenues for vessels that fish in the NED area are much
higher than the gross and net revenues for vessels that fish in other areas, with
the possible exception of the Caribbean. Using the data presented in Table 7.2,
the ex-vessel price information available in the 2001 SAFE report (NOAA Fisheries,
2001d), and the total weight of swordfish reported to ICCAT in the U.S. National
Report (NOAA Fisheries, 2000b), the total annual ex-vessel gross revenues from
swordfish alone for the 10 vessels fishing in the NED area in 1999 were approximately
$3.2 M with an average annual ex-vessel gross revenue of $323,532 per vessel.
Similarly, the 15 vessels active in 1998 landed approximately $3.6 million in
total ex-vessel gross revenues from swordfish alone with an average of $237,753
ex-vessel gross revenues per vessel (Table 7.3). If information more specific
to NED area vessels and their NED area landings is used (i.e., weights reported
to dealers in ports commonly used by vessels fishing in the NED area and the addition
of bigeye tuna revenues) (Table 7.4), the average annual ex-vessel gross revenues
per vessel for 1999 is $325,545 and for 1998 is $188,561. The average annual ex-vessel
gross revenues per vessel for vessels in areas other than the NED area was $41,053
in 1998 and $46,473 in 1999. The estimated total annual ex-vessel gross revenues
from swordfish for all areas except the NED area is $13.9 million for 1999 and
$14.2 million in 1998. Using 2000 weigh-out data and 2000 average prices from
the north Atlantic region, the 13 active vessels landed a total of $5 million
in gross revenues from all species with an average gross revenues per trip of
$106,903 (see Table 8.4). Similarly, the vessels outside the NED area landed a
total of $29 million in gross revenues from all species (see Table 8.4). Thus,
closing the NED area could reduce the total annual ex-vessel gross revenues by
pelagic longline gear by almost 20 percent.
Table 7.3 The estimated annual gross revenues
for vessels from swordfish landed from all areas for 1998 and 1999. The
average price per lb. changes between areas. Source: Cramer and Adams, 2001; NOAA
Fisheries, 2001d; NOAA Fisheries, 2000b.
Area |
Year |
Swordfish
landed |
Total annual
gross revenues
for all vessels
($M) |
Number of
vessels |
Average
annual gross
revenues per
vessel
($K) |
CAR |
1998 |
4,260 |
$1.11 |
30 |
$36.9 |
1999 |
2,600 |
$0.68 |
18 |
$38.0 |
GOM |
1998 |
8,523 |
$2.22 |
98 |
$22.6 |
1999 |
7,960 |
$2.10 |
89 |
$23.5 |
FEC |
1998 |
9,003 |
$2.29 |
69 |
$33.1 |
1999 |
12,259 |
$3.15 |
53 |
$59.4 |
SAB |
1998 |
14,185 |
$3.60 |
53 |
$68.0 |
1999 |
14,708 |
$3.78 |
45 |
$84.0 |
MAB |
1998 |
4,918 |
$1.32 |
64 |
$20.7 |
1999 |
4,709 |
$1.28 |
68 |
$18.9 |
NEC |
1998 |
4,067 |
$1.09 |
40 |
$27.2 |
1999 |
3,003 |
$0.81 |
39 |
$20.9 |
NED |
1998 |
13,308 |
$3.57 |
15 |
$237.8 |
1999 |
11,932 |
$3.23 |
10 |
$323.5 |
SAR |
1998 |
137 |
$0.03 |
9 |
$3.8 |
1999 |
171 |
$0.04 |
4 |
$11.0 |
NCA |
1998 |
4,074 |
$1.03 |
12 |
$86.2 |
1999 |
1,974 |
$0.51 |
9 |
$56.4 |
TUN |
1998 |
882 |
$0.22 |
12 |
$18.7 |
1999 |
427 |
$0.11 |
9 |
$12.2 |
TUS
|
1998 |
4,032 |
$1.02 |
11 |
$93.1 |
1999 |
4,370 |
$1.12 |
8 |
$140.4 |
Total
|
1998 |
67,633 |
$17.76 |
210 |
$84.6 |
1999 |
64,365 |
$17.10 |
193 |
$88.6 |
Table 7.4 The estimated annual gross revenues
for vessels from swordfish and bigeye tuna landed from the NED area for 1997-2000
using data specific to those vessels that fished in the NED area. Source:
Data maintained by the NEFSC and SEFSC.
Year |
Number of
vessels |
Average annual gross
revenues per vessel
($K) |
1997 |
22 |
$152.2 |
1998 |
15 |
$188.6 |
1999 |
10 |
$325.5 |
2000 |
13 |
$386.5 |
Average |
15 |
$263.2 |
NOAA Fisheries hopes that at least a few vessels who normally fish in the NED
area will decide to participate in the experimental fishery NOAA Fisheries is
conducting in the NED area. If this happens, NOAA Fisheries expects that those
fishermen who participate would be compensated as appropriate and that dealers
who rely on those fishermen would receive some of the swordfish normally expected.
Additionally, bait houses and equipment suppliers would still be required by
any of the participating vessels. Thus, the experimental fishery could mitigate
some of the economic impacts to those vessels that participate.
Any benefits to U.S. fishermen as a result of closing the NED area would arise
if fishermen decided to fish in areas closer to shore or in the Caribbean. If
the fishermen do decide to fish in open areas closer to shore, they would experience
fewer costs in terms of fuel and may be able to spend the time usually spent
traveling to the NED area fishing in those areas. If the fishermen who fish
in the NED area land as many swordfish fishing in these other areas, they may
experience higher net revenues. However, given the estimated gross revenues
for vessels in these other areas, this may be unlikely.
Instead, closing the NED area will likely have benefits for the nation as a
whole in terms of the existence value of turtles. The existence value is the
value that society at large places on the recovery of turtle populations. It
is also possible that U.S. consumers would be willing to pay more for domestic
swordfish if they perceive that the U.S. pelagic longline fleet is fostering
sea turtle recovery and working towards a solution to reduce interactions with
sea turtles for all international fleets. Although there is limited evidence
of effective market segmentation in seafood trade, this could benefit dealers,
processors, and fishermen.
Changes in the Distribution of Benefits
and Costs
Depending on the course of action taken by individual vessels, this action could
have large economic impacts on the fewer than 20 vessels that normally fish
in the NED area. Those vessels could volunteer to participate in the experimental
fishery in the NED area. The vessels that do participate would be able to continue
fishing in the NED area pursuant to the terms of the experimental fishery, and
could receive some monetary compensation to offset lost revenues attributable
to gear modifications and other variables of the experiment. Thus, participating
vessels may not be significantly affected by this action, at least during the
experiment (see Chapter 8 for further discussion of the economic impacts of
the NED closed area). Affected vessels could also decide to fish in the open
areas either near shore (compared to the NED area) or farther away from their
current homeports (e.g., the Caribbean). Those vessels that stay near shore
would probably have fewer variable costs and could spend time usually spent
traveling on fishing. However, none of the ex-vessel gross revenues from these
other areas are, on average, as large as those expected from fishing in the
NED area (Table 8.4) so any vessel that chooses this course of action may experience
some decreased revenue. These impacts of increased costs and decreased revenues
may be enough to put some of the vessels out of business. Vessels could also
reflag to another country. NOAA Fisheries is unsure what net economic costs
or benefits might arise for the individual vessel under this circumstance.
Social Effects
Because the fishermen in the NED area report landing approximately 20 percent
of all the swordfish landed by commercial U.S. fishermen, closing the NED area
could also have an adverse impact on dealers. However, the experimental fishery
could mitigate impacts on these dealers at least in the short-term.
Consumers may notice a decrease in the supply of fresh fish if importers are
unable to increase their supplies. Also, as a result of the BiOp and resulting
rules, consumers may perceive U.S.-caught fish as more environmentally sound
and demand domestic fish. If this occurs, it is possible that fishermen fleet-wide
may experience an increase in ex-vessel revenues depending on the demand of
consumers.
This closure could have noticeable impacts on the communities that depend on
the vessels that fish in the NED area. Any impact would depend on the course
of action taken by each individual vessel.
Summary
Closing the NED area will reduce the number of sea turtle takes in the HMS Atlantic
pelagic longline fishery by approximately 70 percent (Table 7.1). While closing
this area could increase marine mammal and seabird takes slightly and could
have large economic and social impacts, until gear modifications are designed
and tested to reduce sea turtle takes, this alternative is the only alternative
that meets the BiOp requirements to reduce sea turtle takes in the HMS Atlantic
pelagic longline fishery. In the short-term, it is likely that the economic
and social impacts could be minimized if NED area fishermen participate in the
experimental fishery.
Alternative 2 (Not Selected) Prohibit vessel operators using pelagic longline
gear from setting gangions next to floatlines (must be two gangion lengths away)
(BiOp Requirement)
Implementing this alternative would prohibit fishermen on all Federally permitted
vessels, or those required to be permitted for HMS, engaged in pelagic longline
fishing for HMS from attaching gangions to the mainline within two gangion lengths
of the floatline attachment to the mainline.
Population and Ecological Effects Due
to Changes in the Bycatch of Sea Turtles
Data from the Hawaii pelagic longline fishery indicate that hooks that are beneath
or adjacent to floatlines have a much higher sea turtle catch rate than hooks
one or more positions away from the floatline (Kleiber, 2000). In observer data
from the Hawaii fleet, hooks nearest the floatline caught 45 percent of all
loggerheads, but only represented 19 percent of the hooks fished on sets that
caught loggerheads. Hooks nearest the floatline caught 49 percent of all leatherbacks,
but only represented 17 percent of the hooks fished on sets that caught leatherbacks.
Based on this information, the June 14, 2001, BiOp estimated that eliminating
hooks in this position could, theoretically, reduce takes of leatherbacks and
loggerheads by as much as 49 percent and 45 percent, respectively. The June
14, 2001, BiOp noted that such a large reduction is unlikely as turtles might
still be caught on the hooks set farther from the floatline. Because of this,
the BiOp estimated that the reductions in sea turtle captures due to this measure
would be 22-percent for loggerheads and 24-percent for leatherbacks.
In the Atlantic pelagic longline fishery, as demonstrated during the 2001 NED
experimental fishery, shifting gangions away from floatlines does not significantly
reduce interactions with sea turtles. In the case of leatherback sea turtles,
shifting gangions from floatlines may increase incidental captures. Loggerhead
captures in the treatment sets did not change significantly from the number
of captures in the control sets. Because of its lack of effectiveness and the
possibility of increasing sea turtle takes, NOAA Fisheries is not selecting
this alternative.
Changes in the Catch of Other Species
and the Resulting Population and Ecosystem Effects
Preliminary data from the 2001 experimental fishery concerning target catch
indicate that moving gangions away from floatlines does not decrease the catch
of target species. Some swordfish fishermen add the gangion adjacent to the
floatline because they believe that the action imparted to the hook by wave
motion makes the bait presentation more attractive to swordfish (Thompson, 2001).
However, a preliminary analysis of data on swordfish caught in the Hawaii-based
fishery indicates that the distribution of all hooks that caught swordfish was
not much different from the distribution of all hooks available to the swordfish
(Thompson, 2001). Thus, NOAA Fisheries would not expect this alternative to
reduce the catch rate of swordfish although a reduction in the number of hooks
could reduce the amount of swordfish caught. However, this alternative may not
affect the number of hooks fished per set if the length of the mainline is increased
or the hook spacing is decreased to maintain a similar number of hooks.
Effects on Marine Mammals and Seabirds
This alternative is not expected to have any positive or negative impact on
the catch of marine mammal and seabird species. While marine mammals can be
hooked on pelagic longline gear, there are no reports indicating that more marine
mammals are caught on hooks near floatlines as opposed to other hooks along
the length of the mainline. Thus, because the number of hooks is likely to remain
the same, NOAA Fisheries would not expect this alternative to change the number
of marine mammals hooked on pelagic longline gear. Similarly, because seabirds
are caught on pelagic longline during the hauling and setting of the gear, changing
the placement of the hooks along the longline is unlikely to have an impact
on the number of seabirds caught.
Effects on Essential Fish Habitat
The HMS FMP and Amendment One to the Atlantic Billfish FMP state that Atlantic
HMS occupy pelagic oceanic environments, which is the general operational range
of the U.S. Atlantic pelagic longline fishery. The HMS FMP describes habitat
damage by pelagic longlines as negligible to the pelagic environment. Gear modifications
are not anticipated to have a negative effect on the EFH for Atlantic HMS.
Changes in Fishing, Processing, Disposal,
and Marketing Costs
This alternative would have minimal economic impacts on fishermen or communities.
Fishermen may decide to buy additional monofilament to extend the length of
the mainline if they decide to keep the same spacing of hooks between floatlines.
However, if fishermen wish to maintain the length of the mainline, they may
reduce the spacing of the gangions between the floatlines or reduce the number
of gangions. NOAA Fisheries would not expect this alternative to affect the
catch rates of target catch. Thus, ex-vessel gross revenues and variable costs
would not be expected to change.
Changes in Fishing Practices and Behavior
of Fishermen
This alternative would cause fishermen to re-rig their longlines which might take
some initial training for the crew. Fishermen may decide to buy additional monofilament
to extend the length of the mainline if they decide to keep the same spacing of
hooks between floatlines. However, NOAA Fisheries expects that many fishermen
would decide to set hooks closer together or reduce the number of gangions, thus
minimizing the need for any additional gear.
Changes in Research, Administration, and Management Effectiveness
This alternative would be difficult to enforce (i.e., must be enforced at sea
while the gear is deployed) and therefore might have decreased management effectiveness
if fishing vessel operators do not perceive benefits from compliance. From an
administrative standpoint, gear modifications are less costly to implement than
other bycatch reduction measures such as time/area closures.
Changes in the Economic, Social, or Cultural
Value of Fishing Activities and Non-Consumptive Uses of Fishery Resources
This alternative would be unlikely to, but could decrease catch rates of target
species if fewer hooks are set on a mainline. It is difficult to predict how fishermen
might respond to this measure. Fishermen could choose to set a longer mainline
or reduce spacing between gangions in order to maintain the same number of hooks
set.
From a social or cultural standpoint, longline fishermen might benefit by indicating
support for fishing practices that may reduce sea turtle interactions.
Changes in the Distribution of Benefits
and Costs
This alternative would not be expected to change the distribution of benefits
and costs for the pelagic longline fishery unless there is a change in the composition
of the target catch (tunas, swordfish) or other marketable non-target fish (e.g.,
dolphin, pelagic sharks).
Social Effects
This alternative would not be expected to have social effects on fishing communities.
Summary
The results of the 2001 NED experimental fishery demonstrated that requiring
gangions to be set two gangion lengths from floatlines would not reduce the
incidental capture of sea turtles in pelagic longline gear and may increase
the interactions with leatherback sea turtles. Based on this information, NOAA
Fisheries is not selecting this measure at this time.
Alternative 3 (Final Action) Require vessels with pelagic longline gear
on board to have the length of any gangion be 10 percent longer than the length
of any floatline if the total length of any gangion plus the total length of
any floatline is less than 100 meters (BiOp Requirement)
Under this alternative, all Federally permitted vessels, or those required to
be permitted for HMS, with pelagic longline gear on board are required to deploy
gangions that are 10 percent longer than the floatlines, if the total length
of any gangion plus the length of any floatline is 100 meters or less. This
alternative allows incidentally captured sea turtles to reach the surface to
breathe, reducing mortality.
Population and Ecological Effects Due
to Changes in the Bycatch of Sea Turtles
The intent of this requirement is to ensure that hooked or entangled turtles
have a sufficient amount of line to be able to reach the surface and avoid drowning.
No quantitative estimate of the effectiveness of this measure can be made at
this time. While allowing turtles access to the surface would certainly be beneficial,
it is recognized that due to the dynamic nature of the ocean environment, fishing
gear does not remain stationary following deployment. The mainline would float
and sink based on prevailing local ocean currents. This behavior of the gear
makes it difficult to assess the impacts of this measure.
Changes in the Catch of Other Species
and the Resulting Population and Ecosystem Effects
NOAA Fisheries does not expect this action to significantly change target or
incidental catch rates. However, this measure could have a slight impact on
the catch composition of the set if the hooks are set deeper. NOAA Fisheries
intends to analyze changes in target catch related to hook depth and floatline
length.
Effects on Marine Mammals and Seabirds
This measure is not expected to have any effects on marine mammals or birds.
Although, similar to turtles, it is possible that marine mammals who can reach
the surface to breathe could have a higher rate of survival. At this time, however,
NOAA Fisheries does not know of any studies of hook depth or floatline length
that evaluated mammal or bird capture or survival rates.
Effects on Essential Fish Habitat
The HMS FMP and Amendment One to the Atlantic Billfish FMP state that Atlantic
HMS occupy pelagic oceanic environments, which is the general operational range
of the U.S. Atlantic pelagic longline fishery. The HMS FMP describes habitat
damage by pelagic longlines as negligible to the pelagic environment. Gear modifications
are not anticipated to have a negative effect on the EFH for Atlantic HMS.
Changes in Fishing, Processing, Disposal,
and Marketing Costs
There may be slightly higher costs associated with modifying the length of the
gangions or floatlines in the short-term. There are no other expected changes
in costs.
Changes in Fishing Practices and Behavior
of Fishermen
This alternative will cause fishermen to modify their gear. This might take
some initial time for the crew. However, once the gangions are longer or floatlines
shorter, there will be no expected changes in fishing behavior or practices.
This measure is not be expected to have long-term impacts on processing, disposal,
or marketing costs.
Changes in Research, Administration,
and Management Effectiveness
This alternative will be difficult to enforce (e.g., enforcement is unlikely
to measure all gangions and floatlines on a vessel to make sure they have the
correct proportions) and therefore might have decreased management effectiveness
if fishing vessel operators do not perceive benefits from compliance. From an
administrative standpoint, gear modifications are less costly to implement than
other bycatch reduction methods such as time/area closures.
Changes in the Economic, Social, or
Cultural Value of Fishing Activities and Non-Consumptive Uses of Fishery Resources
This alternative will have minimal economic or social impacts. From a social
or cultural standpoint, longline fishermen might benefit by indicating support
for fishing practices that may reduce sea turtle interactions.
Changes in the Distribution of Benefits
and Costs
This alternative is not expected to change the distribution of benefits and
costs for the pelagic longline fishery.
Social Effects
This alternative is not expected to have social effects on fishing communities.
Summary
This alternative could reasonably be expected to decrease the mortality of sea
turtles caught on pelagic longline gear with few, if any, impacts on fishermen,
target catch, or other species. Additionally, this alternative may similarly
increase marine mammal survivability.
Alternative 4 (Final Action) Require vessels with pelagic longline gear
on board to possess and use only corrodible, non-stainless steel hooks (BiOp
Requirement)
Under this alternative, all Federally permitted vessels, or those required to
be permitted, for HMS with pelagic longline gear on board are required to possess
and use only corrodible hooks. It is expected that this measure will reduce
the post-release mortality of incidentally captured sea turtles.
Population and Ecological Effects Due
to Changes in the Bycatch of Sea Turtles
This alternative may increase the survival of released sea turtles by requiring
pelagic longline gear to be rigged with hooks that corrode relatively quickly
and thereby reduce the amount of time any ingested or deeply hooked hooks will
remain embedded in the turtle after its release. Depending on how quickly corrodible
hooks dissolve, this alternative may reduce the serious injury and/or mortality
of gear not readily removed from hooked sea turtles. Currently, NOAA Fisheries
is investigating several hook type alternatives to determine the most efficient
corroding mechanism. There is some concern about the physiological effects of
an imbedded hook or a corroding hook on the overall health of a captured species.
NOAA Fisheries plans on holding a meeting to examine and discuss the potential
effects of this occurrence.
Changes in the Catch of Other Species
and the Resulting Population and Ecosystem Effects
NOAA Fisheries believes that many fishermen already use non-stainless steel
hooks so NOAA Fisheries does not expect any changes in the interaction rate
of any of the species that interact with pelagic longlines because of the use
of corrodible hooks. However, depending on the strength of the corrodible hooks
if other types of corrodible hooks are developed, this alternative could have
an impact on retention rates of all species.
Effects on Marine Mammals and Seabirds
This alternative is not expected to have any impact on the catch rate of marine
mammals or seabirds. However, the corrodibility of the hooks could improve the
post-release survivability of these species.
Effects on Essential Fish Habitat
The HMS FMP and Amendment One to the Atlantic Billfish FMP state that Atlantic
HMS occupy pelagic oceanic environments, which is the general operational range
of the U.S. Atlantic pelagic longline fishery. The HMS FMP describes habitat
damage by pelagic longlines as negligible to the pelagic environment. Corrodible
hooks are not anticipated to have a negative effect on the EFH for Atlantic
HMS.
Changes in Fishing, Processing, Disposal,
and Marketing Costs
NOAA Fisheries believes that many fishermen already use non-stainless steel
hooks and expects that this alternative would result in little change in costs
or benefits in the short-term. However, depending on how "corrodible" is defined
in the future, this alternative could result in increased costs and decreased
revenues for pelagic longline vessel owners, captains, and crew. Those vessels
that are currently rigged with stainless steel hooks would have increased direct
costs of replacement hooks and crew time to re-rig the gear. As corrodible hooks
will dissolve more quickly than stainless hooks, those vessels will also have
continued replacement hook and re-rigging costs.
However, in the future, if corrodible is defined as a specific hook type, hook
coating, or alloy content, then economic and social impacts could be substantial.
Economic cost increases could range from high initial hook replacement and re-rigging
costs for all pelagic longline vessels upon implementation of the requirement
to long-term increased hook replacement costs if the corrodible hooks are more
expensive to manufacture and would need to be replaced more frequently due to
their higher corrodibility. Revenues could decrease if the corrodible hooks
are not commercially available so that fishermen could not fish until new hooks
were manufactured or if target catches decrease because corrodible hooks cannot
retain swordfish or tuna as well as currently used hook types. Revenues of hook
suppliers could also be impacted if they are unable to sell any non-corrodible
hooks in their inventory.
Changes in Fishing Practices and Behavior
of Fishermen
The impact of this alternative on the practices and behavior of fishermen will
depend upon the type and durability of the corrodible hook. Under this final
rule, fishermen already using non-stainless steel hooks will not notice any
difference. However, fishermen using stainless steel hooks will have to replace
all their hooks at once and in the future, may have to replace them more often.
If, in the future, corrodible hooks are defined differently, the hooks will
probably have to be replaced more frequently than the current varieties during
the course of a fishing trip and may need to be sharpened often throughout a
trip.
Changes in Research, Administration,
and Management Effectiveness
Management effectiveness could decrease because this measure is difficult to
enforce. However, management effectiveness would be increased if a low-cost
gear modification could reduce bycatch and other more economically significant
measures are not necessary. In addition, by requiring one type of hook on all
vessels utilizing this gear type, this measure could be enforced at the dock
and at sea.
Changes in the Economic, Social, or
Cultural Value of Fishing Activities and Non-Consumptive Uses of Fishery Resources
In the short-term, this measure will force some, but not all, fishermen to buy
all new hooks to comply with the requirement. NOAA Fisheries does not expect
the use of non-stainless steel hooks to have large economic or social impacts
in the short- or long-term.
If the definition of corrodible hooks changes and these new hooks can be manufactured
to be as resilient as current hooks, and retention rates of hooked finfish do
not change significantly, this measure would have minimal economic impacts on
fishermen over time. However, there is a possibility that other definitions
of corrodible hooks could increase costs in the long-term if fishermen need
to replace hooks after each set.
This measure might enhance the social image of pelagic longline fishing activities
as longline fishermen would be perceived as "doing their part" to increase survival
of discarded species.
Changes in the Distribution of Benefits
and Costs
This alternative will not be expected to significantly change the distribution
of benefits and costs for the pelagic longline fishery.
Social Effects
This alternative is not expected to have social effects on fishing communities.
This measure, if effective at increasing the survival of released fish and some
species of turtles, could have positive social benefits as other more costly measures
could be avoided to protect overfished species.
Summary
Non-stainless steel corrodible hooks are expected to have few, if any economic
or social impact, but may increase survivability of hooked sea turtles or other
species. If the definition changes in the future, this alternative could have
larger economic impacts depending on the definition or type of hook required.
Alternative 5 (Final Action) The vessel operator of all vessels with pelagic
longline gear on board must report lethal sea turtle takes within 48 hours of
returning to port (BiOp Requirement)
The vessel operator of all Federally permitted vessels, or vessels required
to be permitted, for HMS with pelagic longline gear on board will be required
to report any turtles that are dead when captured or that die during capture
to the SEFSC Observer Program (at 800-858-0624) within 48 hours of returning
to port, in addition to filling out logbook forms.
Population and Ecological Effects Due
to Changes in the Bycatch of Sea Turtles
This alternative will not have a direct effect on the Atlantic sea turtle populations.
However, by requiring that vessel captains report any dead sea turtles within
48 hours of returning to port, NOAA Fisheries will have more timely estimates
of the number of sea turtles harmed during pelagic longline operations. This could
result in improved management decisions involving fishery interactions with protected
species.
Changes in the Catch of Other Species
and the Resulting Population and Ecosystem Effects
This alternative is not be expected to have an impact on the catch or bycatch
of other species.
Effects on Marine Mammals and Seabirds
This alternative is not expected to adversely affect marine mammals or seabirds.
Effects on Essential Fish Habitat
This alternative will not have any impact upon essential fish habitat.
Changes in Fishing, Processing, Disposal,
and Marketing Costs
This alternative should not have impacts on fishing, processing, disposal, or
marketing costs.
Changes in Fishing Practices and Behavior
of Fishermen
This alternative should not impact the general behavior and fishing practices
of fishermen with one exception: the vessel captain will have to call NOAA Fisheries
to report any lethal sea turtles takes. As this event is fairly rare, NOAA Fisheries
does not expect this alternative to cause a significant alteration in the usual
behavior of the vessel operator.
Changes in Research, Administration,
and Management Effectiveness
This alternative will improve the effectiveness of management by allowing a more
real-time assessment of sea turtle mortalities due to pelagic longline interactions.
As a sea turtle mortality is relatively rare, administrative costs should be small.
This alternative has been approved under the Paperwork Reduction Act.
Changes in the Economic, Social, or Cultural
Value of Fishing Activities and Non-Consumptive Uses of Fishery Resources
This alternative is not expected to cause a change in the economic, social, or
cultural value of fishing activities.
Changes in the Distribution of Benefits
and Costs
This alternative is not expected to change the distribution of benefits and costs
for the pelagic longline fishery.
Social Effects
This alternative is not expected to have social effects on fishing communities.
Summary
This alternative could allow NOAA Fisheries to have more precise sea turtle interaction
estimates, which could lead to better management decisions, at little cost to
fishermen.
Alternative 6 (Final Action) Require all vessels with bottom or pelagic longline
gear on board to have sea turtle handling and release guidelines posted in the
wheelhouse (BiOp Requirement)
This alternative requires all Federally permitted vessels, or vessels required
to be permitted, for HMS that have bottom or pelagic longline gear on board to
have posted in the wheelhouse sea turtle handling and release guidelines. This
alternative should reduce the post-release mortality of incidentally captured
sea turtles.
Population and Ecological Effects Due
to Changes in the Bycatch of Sea Turtles
This alternative provides handling and release guidelines applicable to longline
fisheries for incidentally captured sea turtles. The bycatch of sea turtles will
not be decreased, however the post-release mortality of these individuals will
be decreased because fishermen would have the information available to properly
disentangle or dehook any captured sea turtles.
Changes in the Catch of Other Species
and the Resulting Population and Ecosystem Effects
This alternative will not affect the catch of another species.
Effects on Marine Mammals and Seabirds
This alternative will not affect interactions with marine mammals or seabirds.
Effects on Essential Fish Habitat
This alternative has no impact on essential fish habitat.
Changes in Fishing, Processing, Disposal,
and Marketing Costs
This alternative should not significantly alter the costs of fishing, processing,
disposal, and marketing. The only impact could result in longer gear retrieval
times when fishermen stop to release captured sea turtles in the appropriate method.
Changes in Fishing Practices and Behavior
of Fishermen
Fishermen will have to alter their usual fishing behavior only if they incidentally
capture a sea turtle. The time needed to release sea turtles will vary based on
the associated circumstances, but it is not expected to take long.
Changes in Research, Administration,
and Management Effectiveness
From an administrative standpoint, because NOAA Fisheries has already distributed
this material several times during the past two years, currently provides photocopies
during permit transfers, and has copies available on the web, this alternative
is not expected to increase the cost of management. However, it is difficult
to assess the management effectiveness of this measure due to the difficulties
in enforcing the proper handling and release of sea turtles.
Changes in the Economic, Social, or
Cultural Value of Fishing Activities and Non-Consumptive Uses of Fishery Resources
This alternative will not impact the value of fishing activities. However, from
a cultural or social perspective, the increased protection of sea turtles could
enhance the general perception of fishing activities.
Changes in the Distribution of Benefits
and Costs
This alternative will not affect the distribution of benefits and costs.
Social Effects
This alternative is not expected to have any social effects.
Summary
This alternative could help increase post-release survivability of sea turtles
at no cost to fishermen. No other impacts are expected.
Alternative 7 (Not Selected) No action
This alternative would maintain the existing regulations regarding pelagic and
bottom longline gear and sea turtle interactions. The provisions implemented by
the July 13, 2001, emergency rule would remain in effect until July 8, 2002 (as
extended on December 13, 2001), at which time they would expire.
Population and Ecological Effects Due
to Changes in the Bycatch of Sea turtles
The no action alternative would have detrimental effects on sea turtles because
of the serious injuries inflicted by pelagic longline gear in the mid Atlantic
Bight and Grand Banks areas. The number of turtles that pelagic longline fishermen
are allowed to interact with is limited by the Incidental Take Statement under
the authority of ESA in an attempt to protect vulnerable stocks from this source
of mortality. In 1999, when Atlantic pelagic longline fishermen exceeded their
incidental sea turtle take for loggerhead turtles, NOAA Fisheries re-initiated
consultation under Section 7 of ESA. In 2000, based on the need for additional
data and analyses, NOAA Fisheries once again re-initiated consultation. Taking
no action is not legally acceptable once the incidental take limit for any listed
species has been exceeded or a fishery is declared to jeopardize the continued
existence of a protected species. In this case, ESA requires NOAA Fisheries to
modify or restrict the fishery in order to reduce turtle bycatch.
Changes in the Catch of Other Species
and the Resulting Population and Ecosystem Effects
This measure would not alter the current level of bycatch of other species, and
therefore is not expected to affect the populations of other species.
Effects on Marine Mammals and Seabirds
This management alternative would not change the impact of the commercial HMS
pelagic longline fishery on marine mammals or seabirds.
Effects on Essential Fish Habitat
The HMS FMP and Amendment One to the Atlantic Billfish FMP state that Atlantic
HMS occupy pelagic oceanic environments, which is the general operational range
of the U.S. Atlantic pelagic longline fishery. The HMS FMP describes habitat damage
by pelagic longlines as negligible to the pelagic environment.
Changes in Fishing, Processing, Disposal,
and Marketing Costs
The no action alternative would not change the current costs of commercial fishing,
nor of any of the associated support industries. Marketing costs might increase
in the future under no action if the current public perception of the pelagic
longline fishery supports a boycott of swordfish. The pelagic longline fishermen
and dealers might need to increase marketing efforts in order to keep sales of
swordfish constant.
Changes in Fishing Practices and Behavior
of Fishermen
No changes in fishing practices or behavior of pelagic longline fishermen would
be expected under the no action alternative.
Changes in Research, Administration,
and Management Effectiveness
No additional management actions would be required, therefore there would not
be any concomitant changes in research, administrative or management effectiveness.
Changes in the Economic, Social, or Cultural
Value of Fishing Activities and Non-Consumptive Uses of Fishery Resources
This alternative would not be expected to change the economic, social or cultural
value of fishing activities because no changes in current regulations would be
enacted under this alternative. To the extent that public perception of the longline
fleet could reduce the demand for longline-caught highly migratory species, and
to the extent that an increase in positive media coverage could offset that decrease
in demand, this alternative might have negative economic effects on the value
of the longline fishery.
Changes in the Distribution of Benefits
and Costs
This alternative would not be likely to change the distribution of costs or benefits.
Social Effects
This alternative would have the least amount of social and economic impact on
the pelagic longline fishermen and their respective communities of any alternatives
considered in this document in the short-term, because this alternative would
not change current management of the U.S. pelagic longline fishery in the Atlantic
Ocean. However, if the no action alternative had long-term negative impacts on
sea turtles, it might have long-term impacts on fishing communities if public
approval for pelagic longline fishermen decreases.
Summary
This alternative is not selected because the June 14, 2001, BiOp, requires NOAA
Fisheries to implement management measures that would reduce sea turtle bycatch
and bycatch mortality.
Alternative 8 (Not Selected) Require vessels with pelagic longline gear on
board to have a dehooking device on board; require vessel operators on such vessels
to use the dehooking device
Under this alternative, all Federally permitted vessels, or those required to
be permitted, for HMS with pelagic longline gear on board would be required to
have a dehooking device on board. Vessel operators aboard such vessels would be
required to use it to remove longline hooks from incidentally captured sea turtles.
Population and Ecological Effects Due
to Changes in the Bycatch of Sea Turtles
This alternative should result in increased post-release survival of sea turtles
and other species released from pelagic longline gear. Reducing the post-release
mortality of sea turtles would help the population levels increase in the Atlantic
Ocean Basin. However, it is necessary to delay the implementation of this alternative
until a tested and approved dehooking device is available. Removing hooks in an
inappropriate manner could cause more harm to a sea turtle than leaving the hook
in place.
Changes in the Catch of Other Species
and the Resulting Population and Ecosystem Effects
If used on all bycatch, a dehooking device should reduce the post-release mortality
of other non-target finfish that are caught by pelagic longline fishermen. For
example, undersized swordfish or unwanted sharks could be released alive following
hook removal. This release would allow for a greater survival rate of these fish.
This in turn could contribute to the recovery effort for the overfished stocks.
Effects on Marine Mammals and Seabirds
This alternative would allow hooks to be removed from marine mammals that are
captured in pelagic longline gear which should reduce the post-release mortality.
However, mammals are more frequently entangled, rather than hooked, in longline
gear, so it is difficult to evaluate the benefit this alternative would provide
to marine mammals. It is not likely that this alternative would improve the survival
of seabirds as they are captured and drowned at the time the line is set or hauled.
Effects on Essential Fish Habitat
Carrying a dehooking device is unlikely to have any impact on essential fish habitat.
Changes in Fishing, Processing, Disposal,
and Marketing Costs
Hook removal devices are commercially available from several vendors and are used
to minimize injury to the fish during removal of the hook. The HMS AP discussed
the use of hook removal devices at its March 1998 meeting. Members of the AP representing
all sectors of HMS fisheries were supportive of the voluntary use of these devices.
Fishery participants have largely supported the use of hook removal devices in
some applications in HMS fisheries and NOAA Fisheries encourages HMS fishermen
to use this tool voluntarily. Enforcement of this alternative would be difficult.
Although dockside inspections would identify the presence or absence of the tool,
they would not address whether or not the devices were actually used. Dehooking
devices cost about $45 to 90 per tool and NOAA Fisheries understands that use
of the devices is already widespread in HMS fisheries.
Changes in Fishing Practices and Behavior
of Fishermen
This alternative would change the behavior of fishermen because it would require
an increase in the handling time in order to release bycatch and incidental catch
without hooks. When releasing sea turtles, this alternative should not increase
the handling time significantly as fishermen are already required to remove as
much line as possible from hooked or entangled individuals. This alternative should
allow the fishermen to remove the hook in addition to the entangled gear which
would further improve the post-release survival of the captured sea turtles.
Changes in Research, Administration,
and Management Effectiveness
This alternative would be difficult to enforce in its entirety. While all HMS
pelagic longline vessels may possess a dehooking device on board, it would be
difficult to determine if the vessel operators are using the equipment properly
to release non-target or undersize species with the minimum amount of gear attached
as possible.
Changes in the Economic, Social, or Cultural
Value of Fishing Activities and Non-Consumptive Uses of Fishery Resources
This alternative would not be expected to cause a change in the economic, social,
or cultural value of fishing activities.
Changes in the Distribution of Benefits
and Costs
Requiring that all pelagic longline vessels permitted to fish for HMS carry on
board and use a dehooking device should not cause a change in the distribution
of benefits and/or costs.
Social Effects
This alternative would not be expected to have social effects on fishing communities.
This measure, if effective at increasing the survival of released fish and sea
turtles, could have positive social benefits as other more costly measures could
be avoided to protect overfished, threatened, or endangered species.
Summary
The adoption of this measure would be contingent upon an evaluation of the effectiveness
of current devices being utilized in the NED area experimental fishery. Pending
the completion of the evaluation, NOAA Fisheries may propose further action. If
implemented, this alternative could increase post-release survivability of sea
turtles and other species if fishermen use the device properly. NOAA Fisheries
encourages all fishermen to use a dehooking device voluntarily to remove hooks
from bycatch species.
Alternative 9 (Not Selected) Require vessel operators on vessels with pelagic
longline gear on board to rig the mainline so hooks are fished deeper in the water
column (tuna style fishing)
This alternative would require vessel operators aboard all Federally permitted
vessels, or those required to be permitted, for HMS with pelagic longline gear
on board to configure the gear to maintain the hooks deeper in the water column.
This configuration might minimize attracting sea turtles to baited hooks.
Population and Ecological Effects Due
to Changes in the Bycatch of Sea Turtles
The intent of this requirement would be to avoid capturing sea turtles. As is
demonstrated in the figure below, most of the sea turtle-longline interactions
occur on sets deployed in shallower water. It is expected that if the captain
sets the gear at a greater depth, most of the sea turtle interactions could be
avoided while maintaining an acceptable catch rate. It is difficult to assess
what level of reduction in sea turtle takes and mortality this alternative would
effect. NOAA Fisheries is currently evaluating and testing several sea turtle
bycatch reduction hypotheses in the course of an experimental fishery. It is hoped
that this experiment would provide further insight into sea
turtle behavior and allow the development of more efficient mitigation measures.
Figure 7.2. The number of turtle interactions with respect to hook depth.
Source based on observer data taken from Hoey and Moore 1999
There might be ecological effects from this alternative due to decreased rates of interactions with
sea turtles and resulting increased population sizes. Increased turtle stock size might have effects
on prey species, however, any growth in stock size in the next few years is unlikely to have far-reaching ecological effects.
Changes in the Catch of Other Species
and the Resulting Population and Ecosystem Effects
Setting hooks deeper could change the catch composition of the longline set. It
is likely that requiring all gear to be set deeper could result in larger catches
of tuna and smaller catches of swordfish. NOAA Fisheries does not know what impact
this requirement would have on other species.
Effects on Marine Mammals and Seabirds
NOAA Fisheries does not know of any studies of hook depth that evaluated mammal
or bird capture rates and therefore does not know what impact this alternative
may have on marine mammals or seabirds.
Changes in Fishing, Processing, Disposal,
and Marketing Costs
Because many fishermen fish pelagic longline using both methods, this alternative
would have few impacts on fishing costs. However, for vessels that only fish in
shallow waters, there might be a decrease in gross revenues if catch rates of
swordfish drop because swordfish are generally worth more than tuna.
Changes in Fishing Practices and Behavior
of Fishermen
Once the crew members are used to rigging the gear deeper for every set, there
would be no expected changes in fishing behavior or practices.
This measure would not be expected to have long-term impacts on processing, disposal,
or marketing costs. To the extent that an increase in positive media coverage
could offset that decrease in demand, this alternative might improve public perception
of the fishing practices of the longline fleet. If so, this gear modification
might be able to contribute to the increased demand and thus improved prices for
U.S.-caught HMS.
Changes in Research, Administration,
and Management Effectiveness
This alternative would be difficult to enforce because not only would it have
to be enforced at sea while the gear is deployed, it would also be difficult for
enforcement to detect whether or not the gear is actually being fished "deep enough."
Therefore, there might be decreased management effectiveness if fishing vessel
operators do not perceive benefits from compliance. From an administrative standpoint,
gear modifications are less costly to implement than time/area closures.
Changes in the Economic, Social, or Cultural
Value of Fishing Activities and Non-Consumptive Uses of Fishery Resources
This alternative could decrease catch rates of target species (fish per set) or
change the catch composition since the hooks would be set deeper in the water
column. It is difficult to predict how fishermen might respond to this measure.
From a social or cultural standpoint, longline fishermen might benefit by indicating
support for fishing practices that may reduce sea turtle interactions.
Changes in the Distribution of Benefits and Costs
This alternative would not be expected to change the distribution of benefits
and costs for most of the pelagic longline fishery unless there is a significant
change in the composition of the target catch (tunas, swordfish) or other marketable
non-target fish (e.g., dolphin, pelagic sharks). For fishermen who only fish in
shallow waters, this alternative could decrease revenues because swordfish are
generally worth more than tuna.
Social Effects
The social impacts from this alternative would vary based on the impacts on target
catch created by fishing deeper in the water column.
Summary
NOAA Fisheries needs more information on bycatch reduction effectiveness before
implementing this type of regulation. For instance, how much would catch composition
of target and bycatch species change if the gear is fished deeper and how much
would revenues change. NOAA Fisheries is currently evaluating and testing several
sea turtle bycatch reduction hypotheses in the course of an experimental fishery.
It is hoped that this experiment would provide further insight into sea turtle
behavior and allow the development of more efficient mitigation measures.
Alternative 10 (Not Selected) Require vessel operators on vessels with pelagic
longline gear on board to use only blue-dyed bait
Under this alternative, all Federally permitted vessels, or those required to
be permitted, for HMS with pelagic longline on board would be required to deploy
only blue-dyed bait. The 2001 NED experimental fishery found that this alternative
is not effective in reducing pelagic longline interactions with loggerhead and
leatherback sea turtles.
Population and Ecological Effects Due
to Changes in the Bycatch of Sea Turtles
This alternative would be expected to reduce the incidental capture of sea turtles
in pelagic longline fisheries. Research in Hawaii has shown that blue-dyed squids
reduce the bycatch of seabirds and possibly increase the catch of swordfish. When
field-testing blue bait to reduce seabirds takes, no turtles were caught. However,
turtles were caught with normal bait during the study (Kleiber and Boggs, 2000).
Laboratory tests conducted in Hawaii have shown that green turtles in captivity
are reluctant to take blue-dyed squid compared to normal squid, but eventually
habituate to dyed bait (NOAA Fisheries, 2001c.). NOAA Fisheries examined the effectiveness
of this measure in an experimental fishery conducted in the NED area in 2001.
The analyzed results show that blue-dyed bait does not reduce interactions between
pelagic longline gear and sea turtles.
Changes in the Catch of Other Species
and the Resulting Population and Ecosystem Effects
NOAA Fisheries does not expect this alternative to alter the rate of catch of
target species. The 2001 experimental fishery collected information concerning
the impact of blue-dyed bait on target catch. NOAA Fisheries is currently waiting
for this information to be analyzed pursuant to the impact of blue bait on target
catch.
Effects on Marine Mammals and Seabirds
This measure was initially tested in the Pacific to examine the effect of blue-dyed
bait on the incidental capture of seabirds. Preliminary information suggests that
this requirement could reduce seabird takes in the pelagic longline fishery. NOAA
Fisheries does not know what the impact of this requirement would be on marine
mammals but does not expect this requirement to change the capture rate.
Effects on Essential Fish Habitat
The HMS FMP and Amendment One to the Atlantic Billfish FMP state that Atlantic
HMS occupy pelagic oceanic environments, which is the general operational range
of the U.S. Atlantic pelagic longline fishery. The HMS FMP describes habitat damage
by pelagic longlines as negligible to the pelagic environment. The use of blue-dyed
bait is not anticipated to have an effect on the EFH for Atlantic HMS.
Changes in Fishing, Processing, Disposal,
and Marketing Costs
This alternative would require fishermen to purchase blue dye and prepare the
bait prior to setting the longline. The dye costs approximately $46 per pound.
Based on this, the economic impact should be small unless target species avoid
blue-dyed bait. NOAA Fisheries should have more information concerning the effect
on target catch when the results from the first year of the NED area experimental
fishery are completely analyzed.
Changes in Fishing Practices and Behavior
of Fishermen
The fishermen would have to adjust their fishing practices in order to comply
with this alternative. The blue dye would have to be prepared and the bait would
have to be soaked prior to baiting and deploying the hooks. While this procedure
is not expected to consume a significant amount of time, it would alter the normal
fishing behavior and practice. Also, if the crew is not accustomed to this procedure,
it would take some time at the beginning of the fishing trip to teach them the
proper technique. Over time, it is likely that bait suppliers could begin to provide
pre-dyed bait to fishermen to eliminate the need for the fishermen to dye the
bait themselves.
Changes in Research, Administration,
and Management Effectiveness
This alternative would not be difficult to enforce and may aid in enforcement
of the live bait ban in the Gulf of Mexico. From an administrative standpoint,
gear modifications are less costly to implement than time/area closures.
Changes in the Economic, Social, or Cultural
Value of Fishing Activities and Non-Consumptive Uses of Fishery Resources
This alternative might decrease catch rates of target species or change the catch
composition since different bait would be used than usual. It is difficult to
predict how fishermen might respond to this measure. From a social or cultural
standpoint, longline fishermen might benefit by indicating support for fishing
practices that may reduce sea turtle interactions.
Changes in the Distribution of Benefits
and Costs
This alternative would not be expected to change the distribution of benefits and costs for the
pelagic longline fishery unless there is a significant change in the composition of the target catch
(tunas, swordfish) or other marketable non-target fish (e.g., dolphin, pelagic sharks).
Social Effects
This alternative would not be expected to have social effects on fishing communities.
Summary
As the measure was found to be ineffective at reducing the incidental capture
of sea turtles in the 2001 NED experimental fishery, NOAA Fisheries is not promulgating
the measure in this rule making.
Alternative 11 (Not Selected) Require vessel operators on vessels with pelagic
longline gear on board to use only mackerel as bait
This alternative would require vessel operators aboard all Federally permitted
vessels, or those required to be permitted, for HMS with pelagic longline gear
on board to use mackerel exclusively as bait. NOAA Fisheries will analyze the
ability of this measure to reduce the incidental catch of sea turtles in the 2002
NED area experimental fishery.
Population and Ecological Effects Due
to Changes in the Bycatch of Sea Turtles
NOAA Fisheries expects this alternative to reduce the incidental capture of sea
turtles in pelagic longline fisheries. NOAA Fisheries is anticipating the examination
of the effectiveness of this measure in an experimental fishery being conducted
in the NED area in 2002. Until these data are collected, the effect of mackerel
bait on both target and incidental catch is uncertain.
Changes in the Catch of Other Species
and the Resulting Population and Ecosystem Effects
Currently, there is not a significant amount of data concerning the impact of
mackerel bait on catch rate. However, NOAA Fisheries does not anticipate this
alternative to alter the rate of catch of target species. NOAA Fisheries is planning
on testing this measure in the NED area experimental fishery. The results of the
experiment should provide more information concerning the impact of this alternative
on target catch.
Effects on Marine Mammals and Seabirds
NOAA Fisheries does not anticipate the use of mackerel bait to increase the incidental
capture of seabirds or marine mammals in the pelagic longline fishery.
Effects on Essential Fish Habitat
The HMS FMP and Amendment One to the Atlantic Billfish FMP state that Atlantic
HMS occupy pelagic oceanic environments, which is the general operational range
of the U.S. Atlantic pelagic longline fishery. The HMS FMP describes habitat damage
by pelagic longlines as negligible to the pelagic environment. The use of mackerel
bait is not anticipated to have an effect on the EFH for Atlantic HMS.
Changes in Fishing, Processing, Disposal,
and Marketing Costs
This alternative would require fishermen to alter their bait purchase from squid
to mackerel. As NOAA Fisheries expects that most fishermen already buy the bait
that balances costs and revenues, this alternative would likely alter the cost
of fishing. Currently, a large portion of trip costs goes towards buying bait
(Table 8.9 and 8.10). It is likely that for fishermen who do not already use mackerel
the cost of bait per trip would increase. However, NOAA Fisheries does not currently
know how many fishermen use squid bait versus how many fishermen use mackerel
bait. NOAA Fisheries should have more information concerning the effect on target
catch as the NED area experimental fishery continues.
Changes in Fishing Practices and Behavior
of Fishermen
The fishermen who currently use squid bait would have to slightly adjust their
fishing practices in order to comply with this alternative. Baiting the hooks
with mackerel instead of squid may involve a different procedure which could influence
the time it takes to deploy the gear. Also, if the crew is not accustomed to this
procedure, it would take time at the beginning of the fishing trip to teach them
the proper technique.
Changes in Research, Administration,
and Management Effectiveness
This alternative would not be difficult to enforce and may help enforce the live
bait ban in the Gulf of Mexico. From an administrative standpoint, gear modifications
are less costly to implement than time/area closures.
Changes in the Economic, Social, or Cultural
Value of Fishing Activities and Non-Consumptive Uses of Fishery Resources
This alternative might decrease catch rates of target species or change the catch composition
since different bait would be used than usual. It is difficult to predict how fishermen might
respond to this measure. From a social or cultural standpoint, longline fishermen might benefit
by indicating support for fishing practices that may reduce sea turtle interactions.
Changes in the Distribution of Benefits
and Costs
This alternative would not be expected to change the distribution of benefits
and costs for the pelagic longline fishery unless there is a significant change
in the composition of the target catch (tunas, swordfish) or other marketable
non-target fish (e.g., dolphin, pelagic sharks).
Social Effects
This alternative would not be expected to have social effects on fishing communities.
Summary
NOAA Fisheries requires additional information regarding the effectiveness and
potential impacts of this requirement before it can be implemented. NOAA Fisheries
intends to analyze this measure as part of the 2002 NED area experimental fishery.
Alternative 12 (Not Selected) Require vessels with pelagic longline gear
on board to utilize stealth gear (counter-shaded floats, dark colored lines,
capped LED lights, etc.)
This alternative would require all Federally permitted vessels, or those required
to be permitted, for HMS with pelagic longline gear on board to utilize some
form of stealth fishing gear such as counter-shaded floats, dulled or dark gear,
and capped lights. NOAA Fisheries is currently working to develop and test several
gear modifications that are expected to reduce the number of sea turtle interactions.
Population and Ecological Effects Due
to Changes in the Bycatch of Sea Turtles
Currently, NOAA Fisheries is unaware what effect these measures would have on
the incidental capture rate of sea turtles by the pelagic longline fleet. Ideally,
the use of counter-shaded floats, dulled or dark gear, and capped lights would
reduce the attraction of pelagic longline gear to sea turtles and this would
reduce some of the incidental entanglements and hookings. NOAA Fisheries plans
on testing these measures to determine what level of reductions in sea turtle
takes are realized by each mechanism.
Changes in the Catch of Other Species
and the Resulting Population and Ecosystem Effects
The actual impact on catch rates will depend on the types and combinations of
stealth gear implemented. For instance, dulling the hardware (hooks, clasps,
etc.) and making the lines darker could make the bait more appealing to target
species due to the transparency of the gear. Thus, this combination of gear
could increase catch rates slightly. However, this increase may be counteracted
if the capped LED lights are used because capped LED lights may decrease target
catch by preventing the light from being visible throughout 360 degrees. NOAA
Fisheries plans to test these measures to determine the effect each mechanism
has on target catch.
Effects on Marine Mammals and Seabirds
These measures would not be expected to change the amount of incidental take
of marine mammals or seabirds. As most mammal interactions involve entanglement,
changing the appearance of the longline gear to make it more transparent could
increase the level of takes because marine mammals may not be able to see the
gear. As seabirds are usually taken as they attempt to feed on the deployed
bait, this alternative would not change the current level of take.
Effects on Essential Fish Habitat
The HMS FMP and Amendment One to the Atlantic Billfish FMP state that Atlantic
HMS occupy pelagic oceanic environments, which is the general operational range
of the U.S. Atlantic pelagic longline fishery. The HMS FMP describes habitat
damage by pelagic longlines as negligible to the pelagic environment. The use
of stealth gear is not anticipated to have an effect on the EFH for Atlantic
HMS.
Changes in Fishing, Processing, Disposal,
and Marketing Costs
This alternative would require fishermen to purchase new gear (the type would
depend on the result of any testing). This could impose a one-time cost to the
impacted fishermen. However, if NOAA Fisheries set the effective date sufficiently
in the future, pelagic longline fishermen could gradually replace their current
gear with the new modifications at the usual intervals and thus minimizing the
economic impacts in the short-term. This alternative is not expected to impact
the processing, disposal, and marketing costs unless the measures affect the
catch rate of target species. NOAA Fisheries plans to conduct tests to determine
the effectiveness of this alternative to both reduce the incidental take of
sea turtles and maintain the catch of target species.
Changes in Fishing Practices and Behavior
of Fishermen
This alternative should not alter the behavior and practices of the pelagic
longline fishermen. The gear would be deployed in the same manner, just with
varied equipment. There may be some additional time required to rig the gear
initially, but these modifications would not be expected to interfere or alter
current fishing behavior and practices.
Changes in Research, Administration,
and Management Effectiveness
This alternative would be difficult to enforce (i.e., unless this measure is
enforced at sea, enforcement could only check to ensure the gear is onboard
but not necessarily used) and therefore might have decreased management effectiveness
if fishing vessel operators do not perceive benefits from compliance. From an
administrative standpoint, gear modifications are less costly to implement than
time/area closures.
Changes in the Economic, Social, or
Cultural Value of Fishing Activities and Non-Consumptive Uses of Fishery Resources
This alternative might decrease catch rates of target species or change the
catch composition since different gear would be used. It is difficult to predict
how fishermen might respond to this measure. From a social or cultural standpoint,
longline fishermen might benefit by indicating support for fishing practices
that may reduce sea turtle interactions.
Changes in the Distribution of Benefits
and Costs
This alternative would not be expected to change the distribution of benefits
and costs for the pelagic longline fishery unless there is a significant change
in the composition of the target catch (tunas, swordfish) or other marketable
non-target fish (e.g., dolphin, pelagic sharks).
Social Effects
This alternative would not be expected to have social effects on fishing communities.
Summary
NOAA Fisheries requires additional information regarding the effectiveness and
potential impacts of these measures before they can be implemented.
NOAA Fisheries intends to analyze these measures as part of the NED area experimental
fishery.
7.2 Alternatives for Analysis: Shark Gillnet Requirements
Alternative 13 (Final Action) Both the observer and vessel operator are
responsible for sighting whales and the vessel operator must contact NOAA Fisheries
Southeast Regional Office (SERO) if a listed whale is taken (BiOp Requirement)
The vessel operator of all vessels issued Federal Atlantic shark limited access
permits and that fish for Atlantic sharks with a gillnet and, in cases where
an observer is on board, the observer, are responsible for sighting whales.
The vessel operator is responsible for contacting NOAA Fisheries SERO (at 305-862-2850)
and ceasing fishing in the event of a listed whale being taken in the gillnet
gear while fishing in either a drift gillnet or strikenet method.
Population and Ecological Effects Due
to Changes in the Bycatch of Whales
This alternative is not expected to have a direct impact on the populations
of whales encountered in this fishery. By having two people responsible for
sighting whales, it is hoped that the animals would be spotted prior to any
fishery interaction occurring.
Changes in the Catch of Other Species
and the Resulting Population and Ecosystem Effects
NOAA Fisheries does not expect the catch of target species to be significantly
impacted by this alternative. If a vessel has to move due to sighting a whale,
it may disrupt the amount of catch for that set. However, because whales are
rarely spotted or interacted with, this disruption should have little impact
on target catch.
Effects on Sea Turtles and Seabirds
This alternative is not expected to reduce the incidental capture of sea turtles.
The catch of seabirds is a very rare event in this fishery (none observed since
1993), so it is difficult to anticipate what effects on bycatch of those species
this alternative will have.
Effects on Essential Fish Habitat
The HMS FMP states that Atlantic HMS occupy pelagic oceanic environments, which
is the general operational range of the southeast shark gillnet fishery. The HMS
FMP expects that the habitat damage from gillnets will be minimal due to the deployment
of the gear in the water column.
Changes in Fishing, Processing, Disposal,
and Marketing Costs
NOAA Fisheries does not expect this alternative to affect the costs of fishing,
processing, disposal, or marketing.
Changes in Fishing Practices and Behavior
of Fishermen
This alternative will change the practices of the fishermen by requiring both
the vessel operator and observer to look for whales. If any listed whale is taken
in gillnet gear, then the vessel operator must immediately stop all fishing and
report the incident to the NOAA Fisheries SERO. This could alter the fisherman's
behavior (e.g., they would have to move one nautical mile) if they spot a whale.
However, as this is a rare incident in this fishery (only one whale interaction
has been suspected), the impact is anticipated to be minor.
Changes in Research, Administration,
and Management Effectiveness
This alternative will not involve a significant increase in cost as an existing
reporting system can be used.
Changes in the Economic, Social, or Cultural
Value of Fishing Activities and Non-Consumptive Uses of Fishery Resources
NOAA Fisheries does not expect this alternative to impact the value of fishing
activities or non-consumptive uses of fishery resources.
Changes in the Distribution of Benefits
and Costs
This alternative is not expected to change the distribution of benefits and costs
for the shark gillnet fishery.
Social Effects
This alternative is not expected to have social effects on the fishing communities.
Summary
This alternative should reduce the potential for incidental takes of whales in
shark gillnet gear by requiring both the vessel operator and the observer, if
on board, to spot whales. This alternative should have few, if any, economic or
social impacts.
Alternative 14 (Final Action) Shark gillnet fishermen are required to conduct
net checks every 0.5 to 2 hours to look for and remove any sea turtles or marine
mammals (BiOp Requirement)
In this fishery, it is customary for fishermen to inspect the entire length of
the net every 0.5 to 2 hours. If a protected species is caught in the net, the
fishermen are required to remove it in a manner that would not induce further
harm.
Population and Ecological Effects Due
to Changes in the Bycatch of Sea Turtles
This measure will not reduce the bycatch of sea turtles but should reduce the
mortality level of those sea turtles that are incidentally caught. The average
soak time for the drift gillnets in this fishery is 5.6 to 7.5 hours. By requiring
that fishermen check their nets every 0.5 to 2 hours, any entangled sea turtles
could be found and released before they drowned. During the 2000 and 2001 fishing
years, three loggerhead sea turtles, 14 leatherback sea turtles, and one hawksbill
sea turtle were incidentally captured with three mortalities (see Table 7.5 below).
It is hoped that this alternative will reduce the number of sea turtle mortalities
in this fishery.
Table 7.5 Number of Sea Turtles Observed
to be Incidentally Captured in Shark Gillnet Fishery in 2000 and 2001.
Source: Carlson, 2001.
Species |
Incidental
Catch |
Status |
Released Alive |
Released Dead |
Released
Comatose |
Condition
Unknown |
Hawksbill |
1 |
0 |
0 |
1 |
0 |
Leatherback |
14 |
10 |
2 |
0 |
2 |
Loggerhead |
3 |
2 |
1 |
0 |
0 |
Changes in the Catch of Other Species
and the Resulting Population and Ecosystem Effects
This alternative is not expected to impact the bycatch of other species. The only
harmful impact could be a reduction in catch of target species due to fishermen
moving the net or their increased presence near the net. However, this is not
expected to significantly affect the level of target species caught in this fishery.
Effects on Marine Mammals and Seabirds
NOAA Fisheries expects that this alternative will reduce the mortality of marine
mammals that are incidentally captured in the gillnet fishery. By checking the
nets more frequently, many of the individuals that may be captured can be released
before they drown (see Table 7.6).
Table 7.6 Number
of Marine Mammals Observed to be Incidentally Captured in Shark Gillnet Fishery
in 2000 and 2001. Source: Carlson,
2001.
Species |
Incidental Catch |
Status |
Released Alive |
Released Dead |
Atlantic Spotted Dolphin |
4 |
3 |
1 |
Bottlenose Dolphin |
5 |
0 |
5 |
The catch of seabirds has not been observed in this fishery since 1993, so it
is difficult to anticipate what effects on bycatch of those species this alternative
would have.
Effects on Essential Fish Habitat
The HMS FMP states that Atlantic HMS occupy pelagic oceanic environments, which
is the general operational range of the southeast shark gillnet fishery. The HMS
FMP expects that the habitat damage from gillnets will be minimal due to the deployment
of the gear in the water column.
Changes in Fishing, Processing, Disposal,
and Marketing Costs
This alternative is not expected to have high associated costs as NOAA Fisheries
does not expect it to significantly decrease the amount of target catch although
target catch could be decreased if the net has to be moved frequently. Additionally,
checking the nets every 0.5 to 2 hours could increase the fuel cost for each the
vessel as the vessel would have to travel along the length of the net between
two and three times per set. If the vessel fishes in a strikenet method, net checks
will not have any impact on fishing costs because most strikenet sets take under
one hour.
Changes in Fishing Practices and Behavior
of Fishermen
This alternative will require the fishermen to vary their behavior to some extent.
Based on the average soak time per set, shark gillnet fishermen fishing in a drift
gillnet will have to check their nets two to three times during each set. Depending
on the depth of the set (can be between 3.04 and 13.7 meters), they could use
a flashlight or possibly have to partially haul the section of net to inspect
it for incidentally captured protected species. Fishermen fishing with gillnet
in a strikenet method do not have to vary their behavior.
Changes in Research, Administration,
and Management Effectiveness
This alternative will be difficult to enforce (i.e., must be enforced at sea while
the gear is deployed) and therefore might have decreased management effectiveness
if fishing vessel operators do not perceive benefits from compliance. However,
it is an inexpensive management alternative that could have immediate impacts
on protected species.
Changes in the Economic, Social, or Cultural
Value of Fishing Activities and Non-Consumptive Uses of Fishery Resources
NOAA Fisheries does not expect this alternative to impact the value of fishing
activities or non-consumptive uses of fishery resources.
Changes in the Distribution of Benefits
and Costs
This alternative is not expected to change the distribution of benefits and costs
for the shark gillnet fishery.
Social Effects
This alternative is not expected to have social effects on the fishing communities.
Summary
This alternative could reduce the mortality of protected species entangled in
gillnet gear. There may be some increase in fishing costs, particularly fuel,
depending on the length of the gillnet and the amount of time the gear is set.
Alternative 15 (Not Selected) No action
This alternative would maintain the existing regulations regarding shark gillnet
gear.
Population and Ecological Effects Due
to Changes in the Bycatch of Sea Turtles
Because the shark gillnet fishery is small, approximately six vessels, and does
not have a relatively high interaction rate with protected species, this alternative
would not have a significantly negative an impact on sea turtle or whale populations.
However, since the populations are listed as threatened or endangered, it is
important to reduce post-interaction mortality whenever and wherever possible.
Changes in the Catch of Other Species
and the Resulting Population and Ecosystem Effects
This measure would not alter the current level of bycatch of other species (those
not previously encountered), and therefore is not expected to affect the population
of other species or ecosystem.
Effects on Marine Mammals and Seabirds
This management alternative would not change the impact of the shark gillnet
fishery on marine mammals or seabirds.
Effects on Essential Fish Habitat
The HMS FMP states that Atlantic HMS occupy pelagic oceanic environments, which
is the general operational range of the southeast shark gillnet fishery. The
HMS FMP expects that the habitat damage from gillnets would be minimal due to
the deployment of the gear in the water column.
Changes in Fishing, Processing, Disposal,
and Marketing Costs
This alternative would not alter the fishing, processing, disposal, or marketing
costs.
Changes in Fishing Practices and Behavior
of Fishermen
No changes in fishing practices or behavior of gillnet fishermen would be expected
under the no action alternative.
Changes in Research, Administration,
and Management Effectiveness
No additional management actions accompany this alternative, therefore there
would not be any concomitant changes in research, administrative or management
effectiveness.
Changes in the Economic, Social, or
Cultural Value of Fishing Activities and Non-Consumptive Uses of Fishery Resources
This alternative would not be expected to change the economic, social or cultural
value of fishing activities because no changes in current regulations would
be enacted under this alternative.
Changes in the Distribution of Benefits
and Costs
This alternative would not be likely to change the distribution of costs or
benefits.
Social Effects
This alternative would not be expected to have social effects on the fishing
communities.
Summary
This alternative would not further reduce bycatch or bycatch mortality of protected
species in the shark gillnet fishery. Thus, this alternative does not meet the
requirements of the BiOp.
Alternative 16 (Not Selected) Prohibit use of shark gillnet gear for HMS
fisheries
This alternative would prohibit the use of shark gillnet used in either a drift
gillnet or strikenet method in Atlantic HMS fisheries year-round.
Population and Ecological Effects Due
to Changes in the Bycatch of Sea Turtles
By prohibiting the use of shark gillnet gear, NOAA Fisheries would reduce the
capture and potential capture of sea turtles by vessels in this fishery. During
the 2000 and 2001 fishing years, three loggerhead sea turtles, 14 leatherback
sea turtles, and one hawksbill sea turtle were observed incidentally captured
with three mortalities (Table 7.5). As these species are threatened and endangered,
it is necessary to implement measures to limit their incidental capture. Because
of the size of this fishery and its impacts on sea turtles, prohibiting the
use of gillnets would not be expected to improve significantly the recovery
of sea turtle populations.
Changes in the Catch of Other Species
and the Resulting Population and Ecosystem Effects
Shark gillnet fishermen target both LCS and SCS. Because of the size of this
fleet compared to the bottom longline fleet or pelagic longline fleet, eliminating
this gear type would be unlikely to increase the rebuilding of LCS substantially.
However, these fishermen are among the only fishermen who actually target SCS.
Thus, eliminating this gear type could reduce the number of SCS caught. Given
the size of this fleet, eliminating this gear type would be unlikely to affect
the status of the bycatch species.
Effects on Marine Mammals and Seabirds
Over the past two years, 2000 and 2001, five bottlenose dolphins and four Atlantic
spotted dolphins were observed to be incidentally captured in this fishery.
Also, the location of fishing activities off the east coast of Florida has the
potential to interact with right whales, one of the most endangered species
on the planet. By prohibiting this fishery, these interactions and the chance
of future interactions would be eliminated.
Effects on Essential Fish Habitat
The HMS FMP states that Atlantic HMS occupy pelagic oceanic environments, which
is the general operational range of the southeast shark gillnet fishery. The
HMS FMP expects that the habitat damage from gillnets would be minimal due to
the deployment of the gear in the water column.
Changes in Fishing, Processing, Disposal,
and Marketing Costs
This alternative would force approximately six vessels to stop fishing or to
fish for other species. Generally, the vessels in this fishery fish in the mackerel
fishery during a large coastal shark fishery closure. It is likely that at least
some of the vessels would continue to fish in that fishery.
This alternative is not expected to change processing, disposal or marketing
costs because no related businesses are dependent on the six vessels in this
fishery. However, as SCS are often used as bait in other fisheries, it is possible
that some side effects may occur until another gear begins to fish for SCS or
until those fishermen decide to use another type of bait.
Changes in Fishing Practices and Behavior
of Fishermen
Shark gillnet vessel captains, crew and owners would need to re-rig fishing
vessels to find alternative means to target HMS or other fisheries to stay in
the fishing business, or leave the fishery and find alternative sources of employment.
If fishermen switched to other fisheries, this alternative might have negative
impacts on other species or fisheries, particularly if those species are fully
fished or overfished or if the fisheries are overcapitalized.
Changes in Research, Administration,
and Management Effectiveness
Administrative and management costs would likely decrease in association with
the need to observe fewer vessels.
Changes in the Economic, Social, or
Cultural Value of Fishing Activities and Non-Consumptive Uses of Fishery Resources
The elimination of this fishery would likely have a small impact on other commercial
and recreational fisheries. Some gillnet fishermen would shift effort to target
other fisheries (or the same species with different gear), although many alternatives
might be unavailable due to limited access programs based on prior participation.
Localized reductions in discards and/or catch of sharks and other species could
also increase recreational opportunities, which would have associated benefits
for businesses and communities that support recreational activities.
Changes in the Distribution of Benefits
and Costs
This alternative may put some vessels out of business, thus removing any benefits
or costs. For vessels that continue to use gillnet gear in other fisheries,
this alternative would move all benefits and costs to the other fishery.
Social Effects
For the fishermen involved in the fishery, there would be significant social
effects since they would be forced to relocate or switch target species. The
dealers who purchase the catch from the fishermen would be impacted by the switch
in target species as well. As there are approximately six vessels involved in
the fishery, this alternative could have impacts on the individuals and families.
It is unlikely that any communities would be impacted because these six vessels
are located in Florida, which has more HMS permit holders than any other state.
Summary
While this alternative would eliminate protected species bycatch with this
gear type, this alternative would also have large economic or social impacts
on the fishermen in the fishery. Because protected species interactions with
this gear type are relatively few according to observer data (except for 2001
when an abnormally large number of sea turtles were captured), NOAA Fisheries
does not feel the economic hardship encountered by these few vessels by this
alternative would balance the benefits to protected species particularly when
other options, such as VMS, could reduce bycatch while not having as a large
an economic impact.
Alternative 17 (Not Selected) Require fishermen who hold a Federal shark permit and
use shark gillnets to use spotter planes for strikenetting
All Federally permitted vessels for using HMS shark gillnet gear to target sharks
would be required to utilize the assistance of a spotter plane when setting their
net and to fish in a strikenet fashion. This alternative would reduce the risk
of interactions with protected species.
Population and Ecological Effects Due
to Changes in the Bycatch of Sea Turtles
Strikenetting is a efficient manner of fishing because it allows the vessel operator
to encircle target species with a minimum of bycatch species. During the past
two years, there have been no observed interactions with sea turtles while strikenetting
for sharks. This alternative would further minimize the potential for sea turtles
interactions by allowing for better detection of target species and better identification
of locations of protected species.
Changes in the Catch of Other Species
and the Resulting Population and Ecosystem Effects
This alternative should not impact the level of target catch for strikenetting
vessels. It is possible that the use of spotter planes would make the set more
efficient by allowing the vessel to target larger schools of sharks. This alternative
could reduce the bycatch of non-target fish species by increasing the targeting
efficiency of the strikenet. For vessels that currently driftnet, this alternative
would increase the catch rates of target species.
Effects on Marine Mammals and Seabirds
This alternative should virtually eliminate the incidental capture of marine mammals.
The spotter plane should be able to identify protected species from the air and
guide the fishing vessel to target species that are not near protected species.
In the past two years, no marine mammals have been incidentally taken via strikenet.
This alternative would help lessen the chance of a marine mammal incidental take.
Because the catch of seabirds is a very rare event in this fishery (none observed
since 1993), it is difficult to anticipate what effects on bycatch of those species
this alternative would have.
Effects on Essential Fish Habitat
The HMS FMP states that Atlantic HMS occupy pelagic oceanic environments, which
is the general operational range of the southeast shark gillnet fishery. The HMS
FMP expects that the habitat damage from gillnets would be minimal due to the
deployment of the gear in the water column.
Changes in Fishing, Processing, Disposal,
and Marketing Costs
This alternative would significantly increase the cost of fishing due to the required
use of a spotter plane and a second smaller vessel used to maneuver the net. Generally,
spotter planes receive a percentage of the gross revenues per trip as payment.
To minimize the expense, several boats could share the services of one plane,
but that arrangement would have to be agreed upon by the pilot and vessel operators.
Additionally, some vessels that strikenet do not use spotter planes but fish behind
other vessels where sharks congregate. This alternative could increase their fishing
costs by requiring the use of a spotter plane.
Vessels who only use gillnet gear would have an added expense of finding and maintaining
a second smaller vessel to maneuver the net around the school of sharks. This
would require additional fuel and maintenance.
The disposal and marketing costs should not be affected. Processing costs may
be reduced slightly because fishermen would not catch as many non-target species
in a set.
Changes in Fishing Practices and Behavior
of Fishermen
Using a spotter plane would alter the practices and behavior of the shark gillnet
fishermen, both those who strikenet and those who do not. Instead of looking for
target species independently or by following other vessels such as trawl vessels,
they would have to rely on a spotter pilot to guide them to fish. Some captains
may not be familiar with working with a pilot.
Additionally, vessels who only use drift gillnet gear could be unfamiliar with
using a smaller vessel to quickly encircle the schools of shark. Thus, these fishermen
would need to learn how to use these vessels and how to strikenet efficiently.
Changes in Research, Administration,
and Management Effectiveness
This alternative would be difficult to enforce (i.e., vessels and planes must
be monitored while at sea fishing) and therefore might have decreased management
effectiveness.
Changes in the Economic, Social, or Cultural
Value of Fishing Activities and Non-Consumptive Uses of Fishery Resources
This alternative may eliminate a number of the vessels in this fishery. This decrease
in fishing vessels would likely have only a small impact on other commercial and
recreational fisheries. Some gillnet fishermen would shift effort to target other
fisheries (or the same species with different gear), although many alternatives
might be unavailable due to limited access programs based on prior participation.
Localized reductions in discards and/or catch of sharks and other species could
also increase recreational opportunities, which would have associated benefits
for businesses and communities that support recreational activities.
Changes in the Distribution of Benefits
and Costs
By requiring the use of spotter planes, NOAA Fisheries could alter the cost and
benefit distribution in this fishery. Due to the increased cost required to hire
and effectively utilize a spotter plane and find and maintain a smaller vessel,
this alternative may preclude vessel owners or operators who can not afford the
spotter plane and second vessel from participating in this fishery.
Social Effects
This alternative would have some associated social effects. If vessel owners or
operators can not afford to use spotter planes, they would have to leave the fishery.
That could mean switching to target different species or finding a non-fishing
occupation. This could affect the impacted individual and their family. As described
above, it is unlikely this alternative would affect any communities.
Summary
This alternative would reduce the bycatch of protected species but would have
inordinately large economic costs for the fishermen in the fishery. Some vessels
are successfully experimenting with fishing in a strikenet fashion without the
use of a spotter plane and without the use of a second smaller vessel. At this
time, NOAA Fisheries would like to encourage fishermen to use the strikenet fashion
while observers continue to collect data on different methods of strikenet fishing
and bycatch levels of these different methods.
7.3 Alternatives for Analysis: General Requirements (bycatch mortality
measures for all gear types)
Alternative 18 (Final Action) No action
This alternative will maintain the existing regulations for all HMS gear types
except pelagic longline, bottom longline, and shark gillnet as described above.
Population and Ecological Effects Due
to Changes in the Bycatch of Sea Turtles
This alternative is not expected to change the bycatch of sea turtles by other
HMS fishing gears.
Changes in the Catch of Other Species
and the Resulting Population and Ecosystem Effects
This measure will not alter the current level of target species or bycatch of
other species (those not previously encountered), and therefore is not expected
to affect the population of other species or the ecosystem.
Effects on Marine Mammals and Seabirds
This management alternative will not change the incidental take levels of marine
mammals or seabirds in other HMS fisheries.
Effects on Essential Fish Habitat
This alternative will not impact EFH for HMS.
Changes in Fishing, Processing, Disposal,
and Marketing Costs
The no action alternative will not change the current costs of commercial or recreational
fishing, nor of any of the associated support industries.
Changes in Fishing Practices and Behavior
of Fishermen
No changes in fishing practices or behavior of HMS fishermen will be expected
under the no action alternative.
Changes in Research, Administration,
and Management Effectiveness
No additional management actions accompany this alternative, therefore there will
not be any concomitant changes in research, administrative or management effectiveness.
Changes in the Economic, Social, or Cultural
Value of Fishing Activities and Non-Consumptive Uses of Fishery Resources
This alternative will not be expected to change the economic, social or cultural
value of fishing activities because no changes in current regulations would be
enacted under this alternative.
Changes in the Distribution of Benefits
and Costs
This alternative will not be likely to change the distribution of costs or benefits.
Social Effects
This alternative will not have any social impacts on HMS fishermen.
Summary
This alternative is selected until additional data are collected and analyzed
regarding the impact and effectiveness of the alternatives listed below and some
of the alternatives discussed above (e.g. blue-dyed bait). Until such data are
collected, NOAA Fisheries encourages all HMS fishermen to release sea turtles
in a method that reduces post-release mortality; to use a dehooking device, line
cutter, or dipnet when appropriate; to watch for whales; and to move 1 nm away
from any observed whale or sea turtle.
Alternative 19 (Not Selected) Require all vessel operators on HMS permitted
vessels in each HMS fishery to post sea turtle handling guidelines specific to
interactions in that particular fishery
This alternative would require every vessel permitted to catch HMS to post in
the wheelhouse, or in an appropriate area not yet determined, sea turtle handling
and release guidelines specific to their gear type. This requirement would be
effective for each gear type individually as appropriate guidelines are developed.
Population and Ecological Effects Due
to Changes in the Bycatch of Sea Turtles
This alternative would provide vessel operators handling and release guidelines
applicable to each HMS fishery for incidentally captured sea turtles. While this
alternative would not reduce the bycatch of sea turtles, the appropriate use of
these guidelines could decrease the post-release mortality of sea turtles.
Changes in the Catch of Other Species
and the Resulting Population and Ecosystem Effects
This alternative would not affect the catch of another species.
Effects on Marine Mammals and Seabirds
This alternative would not affect interactions with marine mammals or seabirds.
Effects on Essential Fish Habitat
This alternative would have no impact on essential fish habitat.
Changes in Fishing, Processing, Disposal,
and Marketing Costs
This alternative should not significantly alter the costs of fishing, processing,
disposal, and marketing. The only impact could result in longer gear retrieval
times if fishermen have to stop longer to release captured sea turtles. Charter/headboat
captains could benefit from the interaction if clients perceive the release to
be a positive experience.
Changes in Fishing Practices and Behavior
of Fishermen
Fishermen would have to alter their usual behavior only if they incidentally capture
a sea turtle. The release time would vary based on the associated circumstances,
but it is not expected to take long.
Changes in Research, Administration,
and Management Effectiveness
From an administrative standpoint, this alternative would increase the cost of
management by requiring NOAA Fisheries to develop and prepare copies of the guidelines
for the appropriate gears. At the moment, NOAA Fisheries only has guidelines for
longline gear so development for all other gear types would have to be done. It
would be difficult to assess the management effectiveness of this measure due
to the difficulties in enforcing the proper handling and release of sea turtles.
Changes in the Economic, Social,
or Cultural Value of Fishing Activities and Non-Consumptive Uses of Fishery Resources
This alternative would not impact the value of fishing activities. However, from
a cultural or social perspective, the increased protection of sea turtles could
enhance the general perception of fishing activities.
Changes in the Distribution of Benefits
and Costs
This alternative would not affect the distribution of benefits and costs.
Social Effects
This alternative is not expected to have any social effects.
Summary
While this alternative could potentially reduce bycatch mortality of sea turtles
at little cost to the fishermen, NOAA Fisheries cannot implement this alternative
until handling and release guidelines are developed for gear types other than
longline.
Alternative 20 (Not Selected) Require all vessels with hook and line gear
on board, in addition to pelagic longline vessels, to carry on board line clippers
and dipnets
All Federally permitted vessels fishing for HMS species with any hook and line
gear type on board would be required to have a line clipper and a dipnet on board
that meets NOAA Fisheries design and performance standards. Vessel operators would
be required to use them to facilitate removal of gear from incidentally captured
sea turtles. This measure would help improve the post-release survival of incidentally
captured sea turtles.
Population and Ecological Effects Due
to Changes in the Bycatch of Sea Turtles
Using a dipnet and line clipper would allow monofilament lines and ropes to be
cut from incidentally captured sea turtles as close to the hook or point of attachment
as possible and also facilitate removal of hooks located in sea turtle mouths,
beaks, or bodies by helping to board the turtle on the vessel or holding the turtle
steady in the water while the hook is removed. This would reduce the serious injury
and/or mortality of sea turtles from remaining hooks or trailing gear that results
in impediments to movement, increased risk of entanglement in other gear, and
hook wounds that cannot heal due to attached gear. The reduction in serious injury
and/or mortality of sea turtles should contribute to increased turtle recovery
of the threatened loggerhead and endangered leatherback sea turtles.
Changes in the Catch of Other Species
and the Resulting Population and Ecosystem Effects
This alternative would not have an effect on the catch rate of target or bycatch
species.
Effects on Marine Mammals and Seabirds
This alternative would not have a direct effect on these species, however the
dipnet and line clipper could potentially be used to facilitate release and reduce
mortality if a marine mammal or seabird was incidentally captured.
Effects on Essential Fish Habitat
This alternative would have no impact on essential fish habitat.
Changes in Fishing, Processing, Disposal,
and Marketing Costs
This alternative would have a one-time increase on the cost of fishing and may
discourage the occasional angler from fishing for HMS. All vessels permitted to
fish for HMS species that have hook and line gear on board would have to purchase
a dipnet and line clipper for use on their vessel to help release incidentally
captured sea turtles. The design specifications for this equipment were taken
from the Hawaii pelagic longline fishery and the costs approximately $250 for
both devices. NOAA Fisheries has required that the dipnet and line clipper meet
specific standards which allows the fishermen to fabricate the devices from materials
they already have or can easily obtain (as opposed to requiring the use of a specific
device they would have to purchase). The processing, disposal, and marketing costs
would not be expected to be impacted by this alternative.
Changes in Fishing Practices and Behavior
of Fishermen
The fishing practices and behaviors of fishermen would be altered by this alternative.
Whenever a sea turtle is incidentally captured, they would be required to use
a dipnet and line clipper to bring the animal onboard, if possible, and remove
as much gear as possible before releasing it. Some fishermen already spend time
during gear retrieval to handle and release turtles so this alternative would
not significantly alter this behavior.
Changes in Research, Administration,
and Management Effectiveness
This alternative should not impact the effectiveness of research, administration,
and management. However, it would be difficult to assess the management effectiveness
of this measure due to the difficulties in enforcing the use of dipnets and line
clippers by vessel at sea. Enforcement can verify the presence of the equipment
onboard, but fishermen ultimately have the discretion of using it properly.
Changes in the Economic, Social, or Cultural
Value of Fishing Activities and Non-Consumptive Uses of Fishery Resources
This alternative would not impact the value of fishing activities. However, from
a cultural or social perspective, the increased protection of sea turtles could
enhance the general perception of fishing activities.Changes
in the Distribution of Benefits and Costs
This alternative is not expected to change the distribution of benefits or costs
to the impacted fishermen due to the low one-time cost of the gear and ease of
implementation.
Social Effects
There would be no anticipated social impacts from the implementation of this alternative.
Summary
This alternative could potentially reduce post-release mortality of sea turtles
in HMS fisheries. NOAA Fisheries may implement this alternative in the future
if it is shown to be effective in the pelagic longline fishery.
Alternative 21 (Not Selected) Require all vessels with hook and line gear
on board to carry on board a dehooking device
All Federally permitted vessels with hook and line gear on board engaged in fishing
for HMS would be required to have a dehooking device on board. Vessel operators
would be required to use it to remove gear from incidentally captured sea turtles.
Population and Ecological Effects Due
to Changes in the Bycatch of Sea Turtles
This measure could reduce the post-release mortality of any sea turtles incidentally
hooked in HMS fisheries. Currently, it is difficult for NOAA Fisheries to typify
what level of reduced mortality would be achieved due to lack of data. However,
sea turtles have the potential to be hooked in longline and rod and reel fisheries.
A dehooking device allows the hook to be removed with greater ease which would
improve the probability of survival of the released sea turtle.
Changes in the Catch of Other Species
and the Resulting Population and Ecosystem Effects
This alternative would not directly impact the level of bycatch or the catch rate
of target species in the HMS fisheries. However, it could improve the post-release
mortality of non-target species captured in the longline and rod and reel fisheries
by facilitating the removal of imbedded hooks. For example, vessels with a dehooking
device on board could also use the device to remove the hook from incidentally
caught billfish. This should increase the survival rate of released animals.
Effects on Marine Mammals and Seabirds
This alternative could have a limited effect on marine mammals and seabirds to
the extent that they are captured in HMS fisheries utilizing hooks. The post-release
mortality of any hooked marine mammals or seabirds would be improved by removal
of the hook prior to release. NOAA Fisheries is currently unaware of the exact
number of interactions with these species that occur in each fishery.
Effects on Essential Fish Habitat
There would be no impact on essential fish habitat due to this alternative.
Changes in Fishing, Processing, Disposal,
and Marketing Costs
This alternative would be expected to have a minimal impact on fishing cost. Dehooking
devices that are currently available cost less than $100. NOAA Fisheries expects
that many of the vessels fishing for HMS species already possess one and carry
it on board. This may increase processing costs if the crew has to take more time
than usual to remove hooks from sea turtles or non target species. However, hook
removal is usually not a time consuming process.
Changes in Fishing Practices and Behavior
of Fishermen
By requiring removal of hooks from protected species or other non-target bycatch,
fishermen may have to alter their behavior. However, NOAA Fisheries expects that
some fishermen may already be using a dehooking device prior to releasing animals
and would not have to alter their fishing practices. As the dehooking procedure
can be fairly simple, NOAA Fisheries does not expect it to impose a burden on
the impacted fishermen.
Changes in Research, Administration,
and Management Effectiveness
This alternative should not impact the effectiveness of research, administration,
and management. However, it would be difficult to assess the management effectiveness
of this measure due to the difficulties in enforcing the use of a dehooking device
by vessel at sea. Enforcement can verify the presence of the equipment onboard,
but the impacted fishermen ultimately have the discretion of using it properly.
Changes in the Economic, Social, or Cultural
Value of Fishing Activities and Non-Consumptive Uses of Fishery Resources
This alternative would not impact the value of fishing activities. However, from
a cultural or social perspective, the increased protection of sea turtles could
enhance the general perception of fishing activities.
Changes in the Distribution of Benefits
and Costs
This alternative is not expected to change the distribution of benefits or costs
to the impacted fishermen due to the low cost of the gear and ease of implementation.
Social Effects
There would be no anticipated social impacts from the implementation of this alternative.
Summary
This alternative could potentially reduce post-release mortality of sea turtles
and other bycatch species. NOAA Fisheries believes that many vessels fishing for
HMS already carry a dehooking device on board. NOAA Fisheries may implement this
alternative in the future if it is shown to be effective in the NED experimental
fishery.
Alternative 22 (Not Selected) Require all vessels, in addition to pelagic
longline vessels, to move 1 nautical mile if a marine mammal or sea turtle is
hooked or entangled
This alternative would require all Federally permitted vessels engaged in fishing
for HMS to move 1 nautical mile following the entanglement or hooking of a marine
mammal or sea turtle.
Population and Ecological Effects Due
to Changes in the Bycatch of Sea Turtles
NOAA Fisheries cannot quantify the population and ecological effects due to the
implementation of this alternative. Sea turtles are known to aggregate along oceanic
frontal zones. By moving one mile following an interaction, the vessel may be
positioned off the frontal zone and thus avoid the denser concentrations of sea
turtles. This should decrease sequential catches of protected species.
Changes in the Catch of Other Species
and the Resulting Population and Ecosystem Effects
NOAA Fisheries is unsure what effect this alternative would have on the bycatch
of other species or on the catch rate of target species. Moving one mile could
cause a significant decrease in the amount of target catch or a significant increase
in target catch, depending on the species and the oceanic conditions. Conversely,
it could increase catch rates if the vessel moves to an area with higher densities
of target species.
Effects on Marine Mammals and Seabirds
Currently, NOAA Fisheries believes that moving one nautical mile would lessen
the probability of hooking or entangling a marine mammal or sea turtle. Because
marine mammals travel in pods moving one mile following an interaction may position
the vessel out of the animals' direction of travel. This alternative is not expected
to have any impact on seabirds.
Effects on Essential Fish Habitat
There would be no impact on essential fish habitat due to this alternative.
Changes in Fishing, Processing, Disposal,
and Marketing Costs
This alternative could have an impact on fishing costs. By requiring vessels to
move following an interaction with a marine mammal or a sea turtle, concentrations
of target species could be missed causing a less than optimal catch rate. Also,
if a vessel has to move repeatedly (e.g., a marine mammal or sea turtle is caught
each time the gear is set), more than the usual amount of time and fuel would
be consumed which would increase the cost of the fishing trip.
Changes in Fishing Practices and Behavior
of Fishermen
The practices and behavior of the fishermen would be impacted because they would
have to move after every interaction with a marine mammal or sea turtle. As most
HMS vessels have not been required to do this, many fishermen would be forced
to alter their usual fishing practices to comply with the regulation.
Changes in Research, Administration,
and Management Effectiveness
This alternative should not impact the effectiveness of research, administration, and
management. However, it would be difficult to assess the management effectiveness of this
measure due to the difficulties in enforcing how far a vessel moves, if at all, following an
interaction with a marine mammal or sea turtle.
Changes in the Economic, Social, or Cultural Value of Fishing Activities and Non-Consumptive
Uses of Fishery Resources
This alternative would not impact the value of fishing activities. However, from
a cultural or social perspective, the increased protection of marine mammals and
sea turtles could enhance the general perception of fishing activities.
Changes in the Distribution of Benefits
and Costs
This alternative is not expected to change the distribution of benefits or costs
to the impacted fishermen over time. However, occasionally, due to an encounter
with a marine mammal or sea turtle, movement of the vessel may alter the expected
benefits or costs of that particular trip.
Social Effects
There would be no anticipated social impacts from the implementation of this alternative.
Summary
This alternative could potentially reduce the interaction rates of sea turtles
and marine mammals in HMS fisheries. NOAA Fisheries may implement this alternative
in the future if it is shown to be effective in the pelagic longline fishery.
Until that time, NOAA Fisheries encourages all HMS fishermen
to move 1 nm after an interaction with a protected species.
7.4 Summary of Direct, Indirect, and Cumulative Impacts
The actions analyzed in the FSEIS have direct, indirect, and cumulative impacts
associated with them. In Table 7.7 below, NOAA Fisheries summarized the expected
impacts of each of the alternatives examined. Direct and indirect impacts refer
to the effect of each alternative alone (as if no other regulatory measures are
in place). Cumulative impacts refer to impacts from the specific alternative in
addition to those from other existing regulatory measures, such as quotas, minimum
size limits, time and area closures, sea turtle release requirements (dipnets
and line clippers), live bait prohibition in the Gulf of Mexico, permitting, reporting,
observer, and vessel safety requirements. As noted below, some of the alternatives
would cause a positive or negative cumulative impact, but most of them would cause
no significant difference or no detectable difference in the overall regulatory
impacts. In the case of the no action alternatives, the cumulative impacts do
not change because no action would maintain the status quo.
Table 7.7 Direct, Indirect, and Cumulative
Impacts of Alternatives Considered.
Ecological Impacts |
Population and
ecological effects
due to changes in
the bycatch of sea
turtles |
Changes in the
catch of other
species and the
resulting population
and ecosystem
effects |
Effects on marine
mammals and
seabirds |
Effects on essential
fish habitat |
Pelagic Longline Fishery Requirements |
Alt 1: Close NED
area to pelagic
longline fishing
(Final Action) |
Direct/Indirect |
Reduction in
estimated captures
of loggerheads by
67 to 76% and
leatherbacks by 58
to 65 % |
Initial reduction in
target species and
bycatch although
international fishing
efforts may increase
in NED and negate
reductions from US
vessels |
Could slightly
increase interactions
with marine
mammals and
seabirds depending
where fishing effort
relocates |
No significant
difference from no
action |
Cumulative |
Positive change in
sea turtle
populations |
No significant
change in
cumulative effects |
No significant
change in
cumulative effects |
No detectable
change in
cumulative effects |
Alt 2: Prohibit
setting gangions
next to floatlines
(Not Selected) |
Direct/Indirect |
No impact on
loggerheads, may
increase interactions
with leatherbacks |
No change in catch
of target species |
No significant
difference from no
action |
No significant
difference from no
action |
Cumulative |
Possible negative
change in
leatherback
populations |
No significant
change in
cumulative effects |
No significant
change in
cumulative effects |
No detectable
change in
cumulative effects |
Alt 3: Require
length of any
gangion to be at
least 10 percent
longer than any
floatline if the total
length of any
gangion plus any
floatline is less than
100 meters (Final
Action) |
Direct/Indirect |
Should reduce sea
turtle mortality by
allowing them to
reach the surface to
breathe |
No significant
difference from no
action |
No significant
difference from no
action |
No significant
difference from no
action |
Cumulative |
Slight positive
change in sea turtle
populations |
No significant
change in
cumulative effects |
No significant
change in
cumulative effects |
No detectable
change in
cumulative effects |
Alt 4: Require
possession of
corrodible non-stainless steel hooks
(Final Action) |
Direct/Indirect |
May increase post-release survival of
sea turtles |
No significant
difference from no
action |
Could improve
post-release survival
of marine mammals |
No significant
difference from no
action |
Cumulative |
Slight positive
change in sea turtle
populations |
Slight positive
change in
populations of
bycatch species |
Slight positive
change in marine
mammal
populations |
No detectable
change in
cumulative effects |
Alt 5: Require
reporting of lethal
sea turtle takes
within 48 hours
(Final Action) |
Direct/Indirect |
No significant
difference from no
action |
No significant
difference from no
action |
No significant
difference from no
action |
No significant
difference from no
action |
Cumulative |
No detectable
change in
cumulative effects |
No detectable
change in
cumulative effects |
No detectable
change in
cumulative effects |
No detectable
change in
cumulative effects |
Alt 6: Require
posting of sea turtle
handling and
release guidelines in
wheelhouse (Final
Action) |
Direct/Indirect |
Should reduce post-release mortality of
sea turtles |
No significant
difference from no
action |
No significant
difference from no
action |
No significant
difference from no
action |
Cumulative |
Slight positive
change in sea turtle
populations |
No detectable
change in
cumulative effects |
No detectable
change in
cumulative effects |
No detectable
change in
cumulative effects |
Alt 7: No action
(Not Selected) |
Direct/Indirect |
Jeopardizes
continued existence
of loggerhead and
leatherback sea
turtles |
No change |
No change |
No change |
Cumulative |
No change |
No change |
No change |
No change |
Alt 8: Require
dehooking devices
(Not Selected) |
Direct/Indirect |
May increase post-release survival of
sea turtles |
Could increase
post-release survival
of other bycatch
species |
Could increase
post-release survival
of marine mammals |
No significant
difference from no
action |
Cumulative |
Slight positive
change in sea turtle
populations |
Slight positive
change in bycatch
populations |
Slight positive
change in marine
mammal
populations |
No detectable
change in
cumulative effects |
Alt 9: Require
fishing deeper in
water column (Not
Selected) |
Direct/Indirect |
Should reduce
capture of sea
turtles |
Could reduce catch
of swordfish |
Unknown |
No significant
difference from no
action |
Cumulative |
Positive change in
sea turtle population |
Could have positive
change in swordfish
population |
Unknown |
No detectable
change in
cumulative effects |
Alt 10: Require
blue-dyed bait (Not
Selected) |
Direct/Indirect |
Found to be
ineffective in
reducing sea turtle
captures |
No significant
difference from no
action |
Could reduce
seabird captures |
No significant
difference from no
action |
Cumulative |
No significant
change in
cumulative effects |
No significant
change in
cumulative effects |
Positive change in
seabird populations |
No detectable
change in
cumulative effects |
Alt 11: Require
mackerel as bait
(Not Selected) |
Direct/Indirect |
Expected to reduce
capture of sea
turtles |
Unknown |
Not expected to
increase catch of
seabirds or marine
mammals |
No significant
difference from no
action |
Cumulative |
Unknown |
Unknown |
Unknown |
No detectable
change in
cumulative effects |
Alt 12: Require
stealth gear (Not
Selected) |
Direct/Indirect |
Unknown |
Unknown |
Unknown |
No significant
difference from no
action |
Cumulative |
Unknown |
Unknown |
Unknown |
No detectable
change in
cumulative effects |
Shark Gillnet Fishery Requirements |
Alt 13: Require
operator and
observer to look for
whales; require
operator to contact
NOAA Fisheries if
a whale is taken
(Final Action) |
Direct/Indirect |
No significant
difference from no
action |
No significant
difference from no
action |
Could reduce
incidental captures
of whales |
No significant
difference from no
action |
Cumulative |
No detectable
change in
cumulative effects |
No detectable
change in
cumulative effects |
Slight positive
change in whale
populations |
No detectable
change in
cumulative effects |
Alt 14: Require net
checks every 0.5 to
2 hours and removal
of protected species
(Final Action) |
Direct/Indirect |
Should reduce
mortality of
captured sea turtles |
No significant
difference from no
action |
Should reduce
mortality of marine
mammals |
No significant
difference from no
action |
Cumulative |
Positive change in
sea turtle
populations |
No detectable
change in
cumulative impacts |
Positive change in
marine mammal
populations |
No detectable
change in
cumulative effects |
Alt 15: No action
(Not Selected) |
Direct/Indirect |
No change |
No change |
No change |
No change |
Cumulative |
No change |
No change |
No change |
No change |
Alt 16: Prohibit
shark gillnet gear
(Not Selected) |
Direct/Indirect |
Would eliminate sea
turtle interactions |
Reduce fishing
pressure on some
shark species |
Would eliminate
marine mammal
and seabird
interactions |
No significant
difference from no
action |
Cumulative |
Slight positive
change in sea turtle
populations |
Slight positive
change in some
shark species |
Slight positive
impact on marine
mammals |
No detectable
change in
cumulative effects
|
Alt 17: Require use
of spotter planes for
strikenetting (Not
Selected) |
Direct/Indirect |
Could reduce sea
turtle interactions |
No significant
difference from no
action |
Could reduce
chance of marine
mammal interaction |
No significant
difference from no
action |
Cumulative |
No significant
change in
cumulative impacts |
No significant
change in
cumulative impacts |
No significant
change in
cumulative impacts |
No detectable
change in
cumulative effects |
General Requirements |
Alt 18: No action
(Final Action) |
Direct/Indirect |
No change |
No change |
No change |
No change |
Cumulative |
No change |
No change |
No change |
No change |
Alt 19: Require all
HMS vessels to post
sea turtle handling
and release
guidelines (Not
Selected) |
Direct/Indirect |
Would reduce post-release mortality of
sea turtles |
No significant
difference from no
action |
No significant
difference from no
action |
No significant
difference from no
action |
Cumulative |
Positive change in
sea turtle
populations |
No detectable
change in
cumulative impacts |
No detectable
change in
cumulative impacts |
No detectable
change in
cumulative effects |
Alt 20: Require
vessels with hook
and line gear on
board to carry line
clippers and dipnets
(Not Selected) |
Direct/Indirect |
Could reduce post-release mortality of
sea turtles |
May reduce post-release mortality of
bycatch species |
May reduce post-release mortality of
marine mammals |
No significant
difference from no
action |
Cumulative |
Positive change in
sea turtle
populations |
Slight positive
change in bycatch
and released species |
Slight positive
change in marine
mammal
populations |
No detectable
change in
cumulative effects |
Alt 21: Require
vessels with hook
and line gear on
board to have
dehooking device
(Not Selected) |
Direct/Indirect |
Could reduce post-release mortality of
sea turtles |
Could reduce port-release mortality of
bycatch and
released species |
Could reduce post-release mortality of
marine mammals |
No significant
difference from no
action |
Cumulative |
Positive change in
sea turtle
populations |
Positive change in
bycatch and
released species |
Slight positive
change in marine
mammal
populations |
No detectable
change in
cumulative effects |
Alt 22: Require all
vessels, in addition
to pelagic longline,
to move 1 nautical
mile if a marine
mammal or sea
turtle is hooked or
entangled (Not
Selected) |
Direct/Indirect |
Could reduce sea
turtle interactions
depending on where
the vessel moves |
Unknown |
Could reduce sea
turtle interactions
depending on where
the vessel moves |
No significant
difference from no
action |
Cumulative |
Unknown |
Unknown |
Unknown |
No detectable
change in
cumulative effects |
Economic and Social Impacts |
Changes in
fishing,
processing,
disposal,
and
marketing
costs |
Changes in
fishing
practices and
behavior of
fishermen |
Changes in
research,
administration,
and
management
effectiveness |
Changes in
the economic,
social, or
cultural value
of fishing
activities and
non-
consumptive
uses of
fishery
resources |
Changes in
the
distribution of
benefits and
costs |
Social effects |
Pelagic Longline Fishery Requirements |
Alt 1: Close
NED area to
pelagic
longline
fishing (Final
Action) |
Direct/Indirect |
Could
increase
costs to
operators
and dealers
depending
on
relocation
on vessels |
Distant water
vessels will
either leave
fishery or
relocate to an
open fishing
area |
Increase
research,
administration,
and
enforcement
costs |
Likely fewer
swordfish
landed
domestically
thus affecting
fishermen,
dealers, and
consumers.
Existence
value of sea
turtles could
increase |
Significantly
reduce
economic
benefit of
fishing
activities of
distant water
vessels |
Could impact
communities
that depend
on distant
water vessels |
Cumulative |
Negative
impact on
costs |
Negative
impact on
fishermen |
Negative
impact on costs |
Negative
impact on
value of
fishing
activities |
Negative
impact on
fishermen |
Negative
impact on
fishermen |
Alt 2: Prohibit
setting
gangions next
to floatlines
(Not Selected) |
Direct/Indirect |
Minimal
impacts on
fishermen |
Minimal
impacts on
fishermen |
Measure would
be difficult to
enforce |
No significant
difference
from no
action |
No significant
difference
from no
action |
No significant
difference
from no
action |
Cumulative |
No
significant
change in
cumulative
effects |
No significant
change in
cumulative
effects |
No significant
change in
cumulative
effects |
No significant
change in
cumulative
effects |
No significant
change in
cumulative
effects |
No significant
change in
cumulative
effects |
Alt 3: Require
length of any
gangion to be
at least 10
percent longer
than any
floatline if the
total length of
any gangion
plus any
floatline is
less than 100
meters (Final
Action) |
Direct/Indirect |
Minimal
impacts on
fishermen |
Minimal
impacts on
fishermen |
Measure would
be difficult to
enforce |
No significant
difference
from no
action |
No significant
difference
from no
action |
No significant
difference
from no
action |
Cumulative |
No
significant
change in
cumulative
effects |
No significant
change in
cumulative
effects |
No significant
change in
cumulative
effects |
No significant
change in
cumulative
effects |
No significant
change in
cumulative
effects |
No significant
change in
cumulative
effects |
Alt 4: Require
possession of
corrodible
non-stainless
steel hooks
(Final Action) |
Direct/Indirect |
Minor
increase in
costs.
Those with
stainless
steel hooks
would have
a large
initial cost
increase |
No difference
from no
action except
hooks may be
replaced more
frequently |
Would be
difficult to
enforce |
Immediate
cost to
fishermen
who need to
replace hooks.
Could impact
suppliers |
Costs could
increase in
short term.
No change in
the long term |
No significant
difference
from no
action |
Cumulative |
Negative
impact on
costs to
fishermen |
No significant
change in
cumulative
effects |
No significant
change in
cumulative
effects |
No significant
change in
cumulative
effects |
No significant
change in
cumulative
effects |
No significant
change in
cumulative
effects |
Alt 5: Require
reporting of
lethal sea
turtle takes
within 48
hours (Final
Action) |
Direct/Indirect |
No
significant
difference
from no
action |
Fishermen
required to
call NOAA
Fisheries
during
offloading |
No significant
difference from
no action |
No significant
difference
from no
action |
No significant
difference
from no
action |
No significant
difference
from no
action |
Cumulative |
No
significant
difference
from no
action |
No significant
difference
from no
action |
No significant
difference from
no action |
No significant
difference
from no
action |
No significant
difference
from no
action |
No significant
difference
from no
action |
Alt 6: Require
posting of sea
turtle
handling and
release
guidelines in
wheelhouse
(Final Action) |
Direct/Indirect |
No
significant
difference
from no
action |
Could result
in longer gear
retrieval time |
No significant
difference from
no action |
No significant
difference
from no
action |
No significant
difference
from no
action |
No significant
difference
from no
action |
Cumulative |
No
significant
difference
from no
action |
No significant
difference
from no
action |
No significant
difference from
no action |
No significant
difference
from no
action |
No significant
difference
from no
action |
No significant
difference
from no
action |
Alt 7: No
action (Not
Selected) |
Direct/Indirect |
No change |
No change |
No change |
No change |
No change |
No change |
Cumulative |
No change |
No change |
No change |
No change |
No change |
No change |
Alt 8: Require
dehooking
devices (Not
Selected) |
Direct/Indirect |
Minor
increase in
fishing
costs,
dehooking
devices
cost about
$100 |
Could
increase
handling time
of bycatch
species |
Would be
difficult to
enforce |
No significant
difference
from no
action |
No significant
difference
from no
action |
No significant
difference
from no
action |
Cumulative |
No
significant
difference
from no
action |
No significant
difference
from no
action |
No significant
difference from
no action |
No significant
difference
from no
action |
No significant
difference
from no
action |
No significant
difference
from no
action |
Alt 9: Require
fishing deeper
in water
column (Not
Selected) |
Direct/Indirect |
Would
decrease
revenue for
vessels that
normally
target
swordfish |
Fishermen
would have to
rig gear to
fish deeper |
Would be
difficult to
enforce |
Would
decrease
catch of
swordfish |
Change
would depend
on how target
catch
composition
varies |
Vary based on
target catch |
Cumulative |
Negative
impact on
cost |
Unknown |
No significant
difference from
no action |
Negative
impact on
value of
fishing
activities |
Unknown |
Unknown |
Alt 10:
Require blue-dyed bait (Not
Selected) |
Direct/Indirect |
Dye cost
$46 per
pound
which
would
cause
minor
increase in
fishing cost |
Fishermen
would have to
dye bait blue
which would
increase set
time |
No significant
difference from
no action |
No significant
difference
from no
action |
No significant
difference
from no
action |
No significant
difference
from no
action |
Cumulative |
No
significant
difference
from no
action |
No significant
difference
from no
action |
No significant
difference from
no action |
No significant
difference
from no
action |
No significant
difference
from no
action |
No significant
difference
from no
action |
Alt 11:
Require
mackerel as
bait (Not
Selected) |
Direct/Indirect |
Could
increase
cost of bait
which
would
increase
cost of
fishing |
Would
change
fishing
practice and
behavior as
fishermen
used new bait |
No significant
difference from
no action |
Might
decrease
catch of target
species or
change catch
composition |
Unknown |
No significant
difference
from no
action |
Cumulative |
No
significant
difference
from no
action |
No significant
difference
from no
action |
No significant
difference from
no action |
No significant
difference
from no
action |
No significant
difference
from no
action |
No significant
difference
from no
action |
Alt 12:
Require
stealth gear
(Not Selected) |
Direct/Indirect |
May
require
fishermen
to purchase
new gear |
May not alter
fishing
behavior, but
it depends on
the gear
involved |
May be
difficult to
enforce |
Unknown |
Unknown |
Unknown |
Cumulative |
Unknown |
Unknown |
Unknown |
Unknown |
Unknown |
Unknown |
Shark Gillnet Fishery Requirements |
Alt 13:
Require
operator and
observer to
look for
whales;
require
operator to
contact
NOAA
Fisheries if a
whale is taken
(Final Action) |
Direct/Indirect |
No
significant
difference
from no
action |
Would require
fishermen to
look for
whales and
cease fishing
if a whale is
taken |
Would require
NOAA
Fisheries to
establish a
phone number
and reporting
service |
No significant
difference
from no
action |
No significant
difference
from no
action |
No significant
difference
from no
action |
Cumulative |
No
detectable
change in
cumulative
impacts |
No detectable
change in
cumulative
impacts |
No detectable
change in
cumulative
impacts |
No detectable
change in
cumulative
impacts |
No detectable
change in
cumulative
impacts |
No detectable
change in
cumulative
impacts |
Alt 14:
Require net
checks every
0.5 to 2 hours
and removal
of protected
species (Final
Action) |
Direct/Indirect |
Could
increase
costs
slightly for
fishermen
not already
conducting
net checks |
Would alter
behavior of
those not
already
conducting
net checks by
requiring net
checks several
times during
gear soak |
Would be
difficult to
enforce |
No significant
difference
from no
action |
No significant
difference
from no
action |
No significant
difference
from no
action |
Cumulative |
No
detectable
change in
cumulative
impacts |
No detectable
change in
cumulative
impacts |
No detectable
change in
cumulative
impacts |
No detectable
change in
cumulative
impacts |
No detectable
change in
cumulative
impacts |
No detectable
change in
cumulative
impacts |
Alt 15: No
action (Not
Selected) |
Direct/Indirect |
No change |
No change |
No change |
No change |
No change |
No change |
Cumulative |
No change |
No change |
No change |
No change |
No change |
No change |
Alt 16:
Prohibit shark
gillnet gear
(Not Selected)
|
Direct/Indirect |
Vessels
would
target
different
species or
go out of
business |
Vessels would
need to rerig
to target new
species or exit
fishery |
Costs would
decrease |
Minor
changes based
on small size
of fishery |
Some vessels
may go out of
business,
others may
enter a
different
fishery |
Would be
significant
social effects
as vessels are
forced to
relocate or
switch target
species |
Cumulative |
Negative
change in
costs |
Negative
change in
fishermen
behavior |
Positive impact
on costs |
Negative
impact on
value of
fishing
activities |
Minor
negative
impact on
benefits and
costs |
Negative
impact on
social effects |
Alt 17:
Require use
of spotter
planes for
strikenetting
(Not Selected) |
Direct/Indirect |
Significantly increase
fishing cost
due to use
of spotter
plane and
possibly
second
vessel |
Would
significantly
alter behavior
and practice
of
participants in
the fishery |
Would be
difficult to
enforce |
May
eliminate
some vessels
due to higher
cost
associated
with fishing |
Could alter
distribution
by precluding
vessels that
cannot afford
the spotter
plane and
second vessel |
Would have
negative
social effects
if vessels are
forced to
leave fishery |
Cumulative |
Negative
change in
costs |
Negative
change in
fishermen
behavior |
Negative
impact on costs |
Negative
impact on
value of
fishing
activities |
Negative
impact on
benefits and
costs |
Negative
impact on
social effects |
General Requirements |
Alt 18: No
action (Final
Action) |
Direct/Indirect |
No change |
No change |
No change |
No change |
No change |
No change |
Cumulative |
No change |
No change |
No change |
No change |
No change |
No change |
Alt 19:
Require all
HMS vessels
to post sea
turtle
handling and
release
guidelines
(Not Selected) |
Direct/Indirect |
No
significant
difference
from no
action |
Behavior
would be
altered only if
fishermen had
to release a
turtle |
Appropriate
guidelines for
each gear
would have to
be developed |
No significant
difference
from no
action |
No significant
difference
from no
action |
No significant
difference
from no
action |
Cumulative |
No
detectable
change in
cumulative
impacts |
No detectable
change in
cumulative
impacts |
No detectable
change in
cumulative
impacts |
No detectable
change in
cumulative
impacts |
No detectable
change in
cumulative
impacts |
No detectable
change in
cumulative
impacts |
Alt 20:
Require
vessels with
hook and line
gear on board
to carry line
clippers and
dipnets (Not
Selected) |
Direct/Indirect |
Would
impose a
small one-time cost
on
fishermen |
Behavior
would be
altered only if
fishermen had
to release a
turtle |
No significant
difference from
no action |
No significant
difference
from no
action |
No significant
difference
from no
action |
No significant
difference
from no
action |
Cumulative |
No
significant
change in
cumulative
impacts |
No significant
change in
cumulative
impacts |
No significant
change in
cumulative
impacts |
No significant
change in
cumulative
impacts |
No significant
change in
cumulative
impacts |
No significant
change in
cumulative
impacts |
Alt 21:
Require
vessels with
hook and line
gear on board
to have
dehooking
device (Not
Selected) |
Direct/Indirect |
Would
impose a
small one-time cost
on
fishermen |
Behavior
would be
altered only if
fishermen had
to release a
turtle |
No significant
difference from
no action |
No significant
difference
from no
action |
No significant
difference
from no
action |
No significant
difference
from no
action |
Cumulative |
No
significant
change in
cumulative
impacts |
No significant
change in
cumulative
impacts |
No significant
change in
cumulative
impacts |
No significant
change in
cumulative
impacts |
No significant
change in
cumulative
impacts |
No significant
change in
cumulative
impacts |
Alt 22:
Require all
vessels, in
addition to
pelagic
longline, to
move 1
nautical mile
if a marine
mammal or
sea turtle is
hooked or
entangled
(Not Selected) |
Direct/Indirect |
Could
impact
costs
depending
on impact
on target
catch |
Impact
behavior as
fishermen
have to move
following an
interaction |
No significant
difference from
no action |
No significant
difference
from no
action |
No significant
difference
from no
action |
No significant
difference
from no
action |
Cumulative |
Unknown |
Unknown |
Unknown |
Unknown |
Unknown |
Unknown |