United States Department of the Interior                                        FISH AND WILDLIFE SERVICE                                                   Washington, D.C. 20240

SUBJECT: Action Plan for Fishery Resources and Aquatic Ecosystems

A. POLICY: The Service is redirecting its activities toward an ecosystem approach to fish and wildlife conservation (NPI #94-07). To assure that the full scope and implications of changes in aquatic ecosystems are recognized and acted upon promptly, the Service has adopted the appended Action Plan for Fishery Resources and Aquatic Ecosystem.

B. SCOPE: Servicewide.

C. DESCRIPTION AND FOCUS:

1. The Action Plan presents a comprehensive ecosystem- and watershed-based conservation, restoration, and enhancement program. It is based on scientific management, conservation of natural diversity, effective partnerships, and enhanced public awareness and stewardship. It includes an innovative propagation program that supports native species restoration; endangered species recovery; Federal mitigation responsibilities; subsistence, commercial, and recreational fishing; monitoring and assessment programs; and National Wildlife Refuge and Tribal needs.

2. The Action Plan focuses on nationally significant fishery resources through the scientific management to aquatic communities and wild populations. It also focuses its efforts on aquatic ecosystems where there is a Federal interest.

3. The Service recognizes that implementation of the Action Plan can only be accomplished through cooperative efforts and partnerships with others. The Service will respect other jurisdictions, including State and local and tribal governments, and will seek regional partnerships and joint ventures to accomplish common ecosystem conservation and restoration objectives.

D. IMPLEMENTATION: The Action Plan identifies six priorities and eleven action components to guide implementation.

E. INCORPORATION: This issuance incorporates the Service's Action Plan for Fishery Resources and Aquatic Ecosystems into the National Policy Issuance System. The Action Plan was approved by the Director on May 12, 1994, and distributed to the Service Directorate by the Acting Director's memorandum of June 17, 1994.
 
 
 

08/23/94 BRUCE BLANCHARD

Date Deputy Director-Staff

Approved for publication

MOLLIE BEATTIE
Director
U.S. Fish and Wildlife Service

MAY 12, 1994
Date

"One of my goals is the restoration of America's aquatic ecosystems. In my view, aquatic life is probably the best indicator of ecological health. If the fish, mussels, and other aquatic organisms are healthy, there's a good chance that the ecosystem is healthy. Unfortunately, in too many places today, they are not: Forty-five percent of our Nation's endangered and threatened species are aquatic.

We must make a comprehensive effort to restore the natural support systems that allow healthy, self-sustaining fish populations to grow and thrive. We must restore our waterways, our wetlands, and our watersheds.

Our mission must be to provide the leadership to conserve, restore, and enhance aquatic ecosystems, to perpetuate their many benefits for future generations. Active conservation of aquatic ecosystems will mean a legacy of immense social, recreational, and economic well-being to all people, and a large step toward the maintenance of global biodiversity."

Mollie Beattie

Director, U.S. Fish and Wildlife Service

Protection of living resources dependent on the Nation's inland and coastal aquatic ecosystems has been a core responsibility of the U.S. Fish and Wildlife Service (Service) and its predecessor agencies for more than 120 years. Although great effort has been directed toward this goal, the health and viability of many, if not most, of the Nation's aquatic ecosystems continue to deteriorate. Nationally significant inland and coastal fishery resources are declining at an alarming rate. More than 200 West Coast salmon, steelhead trout, and other fish stocks are depleted. An increasing number of aquatic species (fish, invertebrates, plants) are being listed under the Endangered Species Act. Nuisance non-indigenous aquatic species such as the zebra mussel and ruffe continue to be introduced into U.S. waters with major impacts on aquatic ecosystems and human activities.

o In the past 100 years at least 27 species and 13 subspecies of North American fishes have become extinct, primarily as a result of habitat loss or alteration. Over 100 other species, subspecies, or populations are now listed as threatened or endangered.

o Declining fish populations have resulted in significant financial losses for the commercial and recreational fishing industries. The decline of Atlantic Coast striped bass populations cost an estimated 7,500 jobs and $220 million between 1974 and 1980. Since 1990, estimated economic losses in the Great Lakes recreational and commercial fishing industries have been $1.4 billion annually. Commercial harvest of Pacific salmon in Washington, Oregon, and California, valued at $200 million in 1980, dropped to only $120 million in 1990.

However, these seemingly hopeless situations can be rectified. For instance, cooperative efforts among the Service, the National Marine Fisheries Service, and the States, through the Atlantic States Marine Fisheries Commission, have led to a successful restoration program for striped bass. In 1993, measures of juvenile abundance, long considered an indication of the health of the striped bass fishery, reached historic highs along most of the Atlantic coast.

Past Service activities tended to focus on one or a few species or functional areas. As a result, the full scope and implications of changes in aquatic ecosystems were not always recognized nor acted on promptly. To preclude this from continuing, the Service is now redirecting its activities toward an ecosystem approach and will do so through this Action Plan for Fishery Resources and Aquatic Ecosystems (Action Plan). The Action Plan is based on scientific management, conservation of natural diversity, effective partnerships, and enhanced public awareness and stewardship. Inherent in this vision is the recognition that aquatic resources must be conserved on an ecosystems basis for long-term sustainability.

The Service believes that implementing the Action plan can provide a future where:

o A diversity of aquatic and wildlife species are present in numbers that provide life support and recreational opportunities for all people.

o No aquatic species are threatened with extinction as a result of human factors and ecosystems are naturally diverse and resilient and are in balance with human needs and uses.

o Aquatic habitats are recognized as important public assets and society is actively participating in the conservation, restoration, enhancement, and enjoyment of these habitats.

o Fishery management costs are reduced due to self-sustaining populations.

o Restored ecosystems are free of chemical contaminants that adversely affect animal and plant populations or human uses.

o International agreements and protocols are in place to exercise protection of aquatic ecosystems worldwide.

The Service recognizes that implementation of the Action Plan can only be accomplished through cooperative efforts and partnerships with others. The Service will focus its resources on those aquatic ecosystems where there is a National interest. These efforts will respect jurisdictions such as States and local and Tribal Governments, and will seek regional partnerships and joint ventures to accomplish common ecosystem conservation and restoration objectives.

This ACTION PLAN presents a comprehensive ecosystem- and watershed-based conservation, restoration, and enhancement program. The program focuses on nationally significant fishery resources through the scientific management of aquatic communities and wild populations. It includes an innovative propagation program that supports native species restoration; endangered species recovery; Federal mitigation responsibilities; subsistence, commercial, and recreational fishing; monitoring and assessment programs; and National Wildlife Refuge and Tribal needs.

The Service will focus its efforts on aquatic ecosystems where there is a Federal interest including:

o Areas that contain threatened or endangered species, or that have declining native species that could be subject to Federal listing in the future.

o Interjurisdictional and transboundary waters.

o Federal project mitigation areas.

o National Wildlife Refuges.

o Maintenance of Tribal lands and waters.

o Military installations.

o Areas with healthy ecosystems that can be maintained.

The highest priorities to be addressed through implementation of this ACTION PLAN are:

Conserving self-sustaining native fish populations for the maintenance of productive fisheries in healthy aquatic habitats.

Maintaining healthy wild populations through genetic diversity, harvest management, habitat improvements, and judicious use of hatchery stocks.

Developing and encouraging partnerships between governments and the private sector to provide greater opportunities for conserving and enhancing aquatic ecosystems and for advancing their stewardship.

Increasing public education and outreach to develop an informed and involved citizenry.

Serving as a catalyst in ensuring that aquatic resource problems are quickly identified, corrective steps are organized, and action is agreed upon, coordinated, and addressed.

Assuring long-term ecosystem health while supporting sustainable development of aquatic ecosystems, fishery resources, and compatible recreational, cultural, and other uses.

These priorities are incorporated into the following ACTION COMPONENTS that will guide implementation of the ACTION PLAN. They represent areas of emphasis and new initiatives. They do not define all of the aquatic ecosystem activities of the Service. Where there are conflicts with this Plan, the ACTION COMPONENTS will take precedence. Implementation of the ACTION PLAN will require that Service activities be reviewed periodically and reordered as necessary, both at national and regional levels. Additional actions will be implemented based on their relations to this ACTION PLAN and the mission it seeks to fulfill.
 

Component 1. Partnership: With States, Native Americans, the private sector, and other Federal agencies, develop and implement common management goals and objectives.

High Priority Actions:

A. Initiate and participate in stewardship programs that ensure conservation, restoration, and enhancement of major aquatic ecosystems and watersheds and the fisheries they support. Focus will be on major coastal fisheries and on interjurisdictional waters such as the Great Lakes, the Mississippi, Missouri, Connecticut, Colorado, Rio Grande, Columbia, and Yukon rivers, and Pacific and Atlantic salmon restoration.

B. Initiate assessment, monitoring, and other actions to determine limiting factors in an effort to reverse declining coastal and inland fish populations, with special emphasis on species in serious decline and those listed as threatened, endangered, or candidates.

C. Form partnerships to prevent, control, and reduce the introduction and effects of harmful nonindigenous species (e.g., zebra mussels and ruffe) in aquatic ecosystems and watersheds.

D. Assist Tribal governments in managing fishery resources on reservations and trust-held fishery resources elsewhere.

E. Ensure that stewardship programs and partnerships include representatives from various cultural, racial, ethnic, and gender groups, as well as, people with disabilities.

Component 2. Ecosystem Conservation, Restoration, and Mitigation: Develop policies and mechanisms to reverse degradation of coastal wetland, riparian, freshwater, estuarine, and marine habitats. Conserve large natural systems such as those still found in Alaska.

High Priority Actions:

A. Develop national policies on fishery conservation, restoration, and mitigation that protect natural habitats and wild populations, restore or maintain aquatic ecosystem diversity, ensure consideration of aquatic resources in development project planning, and include fishery resource evaluations as a critical part of mitigation follow-up studies.

B. Develop guidelines for riparian zone management and protection, instream flows, and habitat restoration.

C. Identify nationally significant aquatic ecosystems, including watersheds, fishery habitat, and associated riparian areas as high Service priorities for conservation and protection.

D. Focus fishery technical assistance on conservation, restoration, and enhancement of habitats essential to declining, candidate, and listed aquatic species.

E. Work closely with the National Marine Fisheries Service, States, and Fisheries Commissions and Councils to develop a program to promote self-sustaining coastal fishery resources.

Component 3. Water Quality and Quantity: Restore and protect the quality and quantity of water available for fishery resources and aquatic ecosystems integrity.

High Priority Actions:

A. Define water quality, quantity, and instream flow requirements for aquatic species.

B. Maintain and protect instream flows in important fishery habitats.

C. Encourage rigorous enforcement of water-quality standards and regulations.

D. Recommend effective approaches for fish passage for hydroelectric and other water development projects.

E. Resolve water-quality and contaminants problems, where necessary.

Component 4. Program Evaluation: Ensure that Service hatchery and management programs are based on approved management plans and are compatible with the preservation of native and wild populations.

High Priority Actions:

A. Initiate comprehensive evaluation of Service fishery restoration, mitigation, and enhancement programs.

B. Ensure that production of hatchery fish and associated management are based on integrated principles of conservation genetics and ecology.

C. Develop and implement monitoring, sampling, and reporting systems to evaluate effectiveness of (1) fishery restoration, mitigation, and enhancement programs, and (2) hatchery programs in achieving specific management objectives, especially in conserving wild stocks, maintaining the diversity of native fish communities, and contributing to stable, productive fisheries.

D. Develop Aquatic Resource Management Plans that outline specific strategies and objectives that consider genetic, ecological, and economic characteristics of fishery resources, especially wild populations and those in decline or in threat of decline.

E. Develop and implement a Service conservation genetics policy to ensure that management and hatchery programs contribute to: (1) national fishery objectives, (2) fishery objectives for specific ecosystems, and (3) preservation of genetic diversity and integrity.

F. Develop and use captive propagation techniques for fishes and other aquatic species listed as threatened, endangered, or candidate under the Endangered Species Act, when specifically prescribed in recovery plans. Other techniques that are in accordance with conservation genetic principles and in conjunction with habitat restoration may be approved by the Director.
 
 

Component 5. Technology Development: Support investigations in the following areas: genetics, threatened and endangered fish, drug and chemical management, water and effluent management, wild and cultured fish interactions, hatchery product evaluation, and non-indigenous aquatic nuisance species management.

High Priority Actions:

A. Design and implement innovative fishery technology development activities to support conservation and restoration of aquatic ecosystems.

B. Establish fish health programs and protocols to protect wild and hatchery populations from diseases. Develop technologies and procedures to minimize risk of pathogen transfer to avoid or minimize epizootic outbreaks.

C. Develop predictive capabilities to determine the cumulative effects of habitat degradation and alteration on fishery resources and aquatic ecosystems.

D. Develop assessment and predictive capabilities to determine methods of preventing introductions of and controlling or eliminating nonindigenous aquatic nuisance species as well as determining their effects on aquatic resources.
 
 

Component 6. Fishery Management on National Wildlife Refuges: Develop and implement comprehensive fishery management plans and assessments on all refuges with suitable habitat.

High Priority Actions:

A. Develop and implement comprehensive fishery management plans, including inventory and studies that address habitat as well as fish, to restore native fish communities, preserve biodiversity, and provide public education and compatible recreation opportunities on suitable National Wildlife Refuges.

B. Identify and evaluate significant aquatic ecosystems and associated riparian areas for inclusion in the National Wildlife Refuge System.
 
 

Component 7. Federal Aid to States: Develop closer partnerships through the Federal Aid Program with the States, private industry, conservation organizations, and the public to protect and restore fishery resources and aquatic habitats.

High Priority Actions:

A. Encourage States to develop goals for restoration of fish populations and communities to manage sport fisheries in a manner compatible with conservation of all fish communities.

B. Encourage projects that address interjurisdictional fisheries issues, aquatic habitat restoration and enhancement, and natural resource damage assessment.

C. Encourage promotion of diverse fishing opportunities that meet the public need while adhering to principles of biodiversity conservation and management and contributing to public appreciation of aquatic ecosystems.
 
 

Component 8. Aquaculture: Establish partnerships with the private aquaculture community to ensure industry development that is economically viable and compatible with protection of native and wild fish populations.

High Priority Actions:

A. Develop and implement protocols to ensure that fish, fish pathogens, and fish products available from private aquaculture operations do not pose unacceptable risks to natural ecosystems.

B. Provide fish culture information, fish containment techniques, results of fish health research, technical training, and technical assistance to private aquaculture consistent with Service fishery stewardship objectives.
 
 

Component 9. Public Education and Outreach: Establish environmental awareness and outreach programs to develop an informed and involved citizenry that supports aquatic ecosystem conservation and fishery stewardship.

High Priority Actions:

A. Broaden public awareness of the importance of conserving America's biologically diverse aquatic ecosystems. Increase educational outreach to improve understanding of the status and value of healthy fish populations.

B. Use the Service's Challenge Grant Program and programs, such as those of the National Fish and Wildlife Foundation, to catalyze fish conservation, enhance private sector involvement, and foster increased public awareness and stewardship for fishery and aquatic ecosystems programs.

Component 10. Sustainable Development: Ensure the future quality and quantity of the Nation's fishery resources and aquatic ecosystems while providing public benefit and use.

High Priority Actions:

A. Foster sound aquatic conservation and restoration endeavors with the recreational fishing industry and others for the mutual benefit of recreational fisheries resources.

B. Improve and expand quantifiable economic valuations of aquatic resources to demonstrate the importance of these resources to the health and welfare of society and the Nation's economy.

C. Identify recreational fishing opportunities that are limited by water quality or habitat degradation and promote restoration to support healthy recreational fisheries.

Component 11. Law Enforcement: Enforce Federal laws to ensure that no aquatic species is threatened by illegal take, transport, commerce, or habitat destruction.

High Priority Actions:

A. Focus fishery law enforcement efforts on illegal activities having the greatest impact on nationally significant coastal and inland aquatic ecosystems.

B. Prevent and reduce unintentional violations through increased efforts to inform the public about Federal fishery laws and regulations, and the consequences of violating these regulations. Emphasize preventive enforcement and educational programs that promote fishery and aquatic ecosystem conservation ethics.
 
 

Component 12. Marine Mammals: Protect and maintain optimum sustainable population levels and achieve recovery of marine mammals for which the Service has primary jurisdiction (i.e., polar bears, walrus, sea otters, manatees, and dugong).

High Priority Actions:

A. Cooperate with Alaskan Native, States, foreign governments, industry, the Marine Mammal Commission, and the National Marine Fisheries Service to monitor the status and trends of populations.

B. Cooperate with Alaskan Natives, States, other Federal agencies, foreign governments, and conservation and other interested groups to prepare and implement conservation plans.

C. Manage marine mammals based on biological principles and established practices to protect them before populations become depleted.