Transcript Progress with Assessment of Data

Legal Governance of
European Fisheries
Rainer Froese
Law of the Sea in the 21st Century
CAU, Kiel, 8.03.2014
Overview
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The MSY concept
Safe biological limits
Status of European fish stocks
UNCLOS and the Common Fisheries Policy
Conclusions
MSY, Bmsy and Fmsy
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MSY is the maximum sustainable yield
Biomass (B) is the weight of the fish in the sea
Bmsy is the biomass that can produce MSY
Fmsy is the fishing pressure that eventually
results in Bmsy and MSY
• A stock is and remains in good status if
B > Bmsy and F < Fmsy
Background of the MSY Concept
Schaefer 1954; BioDivPopGrowthMSY.xls
Surplus Production Implications
• Surplus production (Y) is the production of
biomass beyond what is needed to maintain
current population size
• If a fishery only catches the surplus
production, then the population size remains
• If a fishery catches more, then the population
shrinks
• If it catches less, then the population grows
Surplus Production Implications
• Surplus production has a maximum at about
half of unexploited population size B∞
• Keeping a population at 0.5 B∞ allows catching
MSY forever
• A population is kept stable if the fishing rate F
equals the intrinsic growth rate rt
• MSY is reached at ½ B∞ and ½ rmax
• Thus, MSY is reached at Fmsy = ½ rmax
The Past Common Fisheries Policy
(until 2013)
• Apply a precautionary approach to fishing
• Keep fish stocks within safe biological limits
Safe Biological Limits
Conceptual drawing of the hockey stick relationship between spawning stock size and recruitment. SSBlim
marks the border below which recruitment declines, SSBpa marks a precautionary distance to SSBlim, and
2 * SSBpa can be used as a proxy for SSBmsy, the stock size that can produce the maximum sustainable catch.
Current Status of European Stocks
Communication of the Commission in 2013:
“The number of overfished stocks (where the
most recent fishing mortality is higher than that
which will provide MSY) has fallen from 47% last
year to 39% this year.”
Brussels, 30.5.2013, COM(2013) 319 final
Status of European Stocks
Extending the trends
in the last 3 years for the
95% confidence limits…
SSBpa
UNCLOS
UNFSA
Based on the ICES Stock Summary database 10/2013 with data for 45 stocks [relF_relB.xlsx]
Scientific Advice
• Management decisions are to be “based on
best available scientific advice”
• But how independent and good is that advice?
Independence of Scientific Advice
• Most fisheries scientist in Europe are directly
or indirectly employed by the Ministers of
Agriculture (the same who decide about
fisheries management in Brussels)
• ICES (the advisory body to the EC) is an
intergovernmental organization. The policysetting Council of ICES consists of national
representatives who are determined by the
Ministers of Agriculture (the same…)
Quality of Scientific Advice
• Fisheries science holds that mortality caused by
sustainable fishing (Fmsy) should be less than
natural mortality (M) caused by e.g. predation,
diseases, natural hazards or old age
• Doubling mortality reduces life time and
reproductive phase by half and also reduces
average size and fecundity
• However, in 29 of 38 stocks (76%) with available
data, the ICES estimate of Fmsy exceeded M, on
average by 62%
Fishing Mortality may be Higher
True F/Fmsy may be higher because
of unrealistically high Fmsy
in 76% of the stocks
Based on the ICES Stock Summary database 10/2013 with data for 45 stocks
Quality of Scientific Advice
• ICES provides estimates of the border of safe
biological limits (SSBpa). Below SSBpa
recruitment may be reduced and the stock is
at increased risk of collapse
• In 14 of 43 stocks (33%) with available data,
the ICES estimate of SSBpa fell below the
median estimate of three independent
scientific methods.
Underestimation of Safe Biological Limits
SSBpa
ICES three independent methods
Analysis of stock-recruitment data for North Sea Doggerbank Sandeel (san-ns1), with three different methods. [S-R_HS_5_san-ns1.r]
Stock Biomass may be Lower
True SSB/SSBpa may be lower
because of unrealistically low SSBpa
in 33% of the stocks
Based on the ICES Stock Summary database 10/2013 with data for 45 stocks
UNCLOS & UNFSA in the CFP
Article 2.2
• The CFP shall apply the precautionary approach to
fisheries management, and shall aim to ensure that
exploitation of living marine biological resources
restores and maintains populations of harvested
species above levels which can produce the
maximum sustainable yield.
• In order to reach the objective of progressively
restoring and maintaining populations of fish stocks
above biomass levels capable of producing maximum
sustainable yield, the maximum sustainable yield
exploitation rate shall be achieved by 2015 where
possible and, on a progressive, incremental basis
at the latest by 2020 for all stocks.
CFP beyond UNCLOS
Preamble of CFP
Whereas: ...
• (11) The CFP should contribute to the protection of the
marine environment, to the sustainable management of all
commercially exploited species, and in particular to the
achievement of good environmental status by 2020, as set
out in Article 1(1) of Directive 2008/56/EC of the European
Parliament and of the Council1.
• (13) An ecosystem-based approach to fisheries management
needs to be implemented, environmental impacts of fishing
activities should be limited and unwanted catches should
be avoided and reduced as far as possible.
• (16) The CFP should pay full regard, where relevant, to
animal health, animal welfare, food and feed safety.
CFP beyond UNCLOS
Preamble of CFP
• (22) In order to contribute to the conservation of living
aquatic resources and marine ecosystems, the Union
should endeavour to protect areas that are biologically
sensitive, by designating them as protected areas. In such
areas, it should be possible to restrict or to prohibit fishing
activities. When deciding which areas to designate,
particular attention should be paid to those in which there
is clear evidence of heavy concentrations of fish below
minimum conservation reference size and of spawning
grounds, and to areas which are deemed to be biogeographically sensitive. Account should also be taken of
existing conservation areas. [....]
CFP beyond UNCLOS
• Article 2.3 The CFP shall implement the
ecosystem-based approach to fisheries
management so as to ensure that negative
impacts of fishing activities on the marine
ecosystem are minimised, and shall endeavour
to ensure that aquaculture and fisheries
activities avoid the degradation of the marine
environment.
Precautionary Principle in CFP
• Article 4.1 (8) 'precautionary approach to fisheries
management', as referred to in Article 6 of the UN
Fish Stocks Agreement, means an approach
according to which the absence of adequate
scientific information should not justify
postponing or failing to take management
measures to conserve target species, associated
or dependent species and non-target species and
their environment;
• [But no mentioning that, in case of uncertainty, the
option that will lead to less potential damage has
to be chosen]
CFP beyond UNCLOS
• Article 4.1 (9) 'ecosystem-based approach to fisheries
management' means an integrated approach to managing
fisheries within ecologically meaningful boundaries which
seeks to manage the use of natural resources, taking account
of fishing and other human activities, while preserving both
the biological wealth and the biological processes necessary
to safeguard the composition, structure and functioning of
the habitats of the ecosystem affected, by taking into
account the knowledge and uncertainties regarding biotic,
abiotic and human components of ecosystems;
Article 4.1 (11) 'low impact fishing' means utilising selective
fishing techniques which have a low detrimental impact on
marine ecosystems or which may result in low fuel emissions,
or both;
CFP beyond UNCLOS
• Article 4.1 (17) 'minimum conservation reference size' means
the size of a living marine aquatic species taking into account
maturity, as established by Union law, below which
restrictions or incentives apply that aim to avoid capture
through fishing activity; such size replaces, where relevant,
the minimum landing size;
CFP beyond UNCLOS
Article 8, Establishment of fish stock recovery areas
1. The Union shall, while taking due account of existing
conservation areas, endeavour to establish protected
areas due to their biological sensitivity, including areas
where there is clear evidence of heavy concentrations of
fish below minimum conservation reference size and of
spawning grounds. In such areas fishing activities may be
restricted or prohibited in order to contribute to the
conservation of living aquatic resources and marine
ecosystems.
Conclusion
• After New Zealand, Australia and USA, the EU
has finally written into regional law the
“fishing” norms of the Law of the Sea
• Implementation and enforcement will have to
follow next
• Independence of scientific advice has to be
ensured and quality has to be verified (need
for a formal way to challenge ‘wrong’ advice)
Thank You