Beyond the HCR: Benefits of Fully Specified Management Procedures (2024)

In an up and down year, the Pacific comes out on top for harvest strategy development in 2023

2023 began with high expectations for harvest strategies at the tuna-RFMOs. 2022 saw adoption of harvest strategies for 4 tuna stocks, and another four priority stocks were on track for 2023 adoption.

At the end of 2022, the International Commission for the Conservation of Atlantic Tunas (ICCAT) adopted a multi-stock harvest strategy for Atlantic bluefin tuna and preliminary management objectives for western Atlantic skipjack. ICCAT was expected to build on this momentum by adopting harvest strategies for western Atlantic skipjack and North Atlantic swordfish this year, as well as make significant progress on a multi-species management strategy evaluation (MSE) for tropical tunas. But all three of these desired outcomes were unsuccessful, marking 2023 as a year of frustration for fisheries management at ICCAT.

But where there was disappointment in the Atlantic, tuna fisheries in the Pacific made notable progress for harvest strategies throughout the basin.  The Northern Committee of the Western and Central Pacific Fisheries Commission (WCPFC) agreed to a formulaic harvest control rule for North Pacific albacore in July, teeing up adoption on both sides of the basin.  The Inter-American Tropical Tuna Commission (IATTC), which governs the Eastern Pacific, adopted the framework to mark their first ever harvest strategy in August.  The ball once again in their court, WCPFC adopted a complementary measure in December, making North Pacific albacore the first ever trans-Pacific harvest strategy and the first to be jointly managed by more than one regional fishery management organization.  WCPFC also agreed to a revised target reference point for South Pacific albacore in a critical step toward harvest strategy adoption scheduled for next year.

But some of the most welcome news from WCPFC was about Western and Central Pacific skipjack tuna.  WCPFC adopted a harvest strategy for this stock in 2022 but stopped short of mandating implementation.  Some governments and stakeholders, including harveststrategies.org, continually called for WCPFC to take that important step this year, especially after the first run of the harvest strategy demonstrated that it was performing as expected and that fishing could remain at recent levels. WCPFC responded last week by adopting a clause in its main tropical tunas measure that will require management action if the harvest strategy-based fishing levels are exceeded, effectively implementing the harvest strategy.  This was a monumental step forward for the world’s largest tuna fishery and the third largest fishery in the world.

Now, the conversation turns again to what we can expect for harvest strategies at tuna-RFMOs in 2024. This year was very much a steppingstone year at the Indian Ocean Tuna Commission (IOTC), where harvest strategy development advanced considerably in 2023 for swordfish and skipjack, the latter of which currently only has a harvest control rule in place rather than a fully specified harvest strategy. Both stocks will be ready for harvest strategy adoption in 2024, and combined with the recent delays at ICCAT, it will make it an extraordinarily busy year. 2024 has the potential to see more harvest strategies adopted at tuna-RFMOs globally than ever before.  

There are also encouraging signs of progress for other species besides tuna and swordfish at these and other RFMOs.  In fact, the sole measure concerning harvest strategies adopted at ICCAT this year was for blue sharks, directing ICCAT scientists to explore the feasibility over the next couple of years of conducting management strategy evaluations on the northern and southern stocks.  A harvest strategy for North Pacific saury could also be adopted early next year by the North Pacific Fisheries Commission.  And the General Fisheries Commission for the Mediterranean is preparing to adopt as many as ten harvest strategies in the coming years. These examples are encouraging signs that harvest strategies can continue to be scaled for all types of species and contexts in fisheries throughout the world.  

As COP28 nears, harvest strategies will be essential to making climate change resilient fisheries

The sudden closure of the east Bering Sea snow crab fishery for the 2022-2023 season, and now extended for the 2023-2024 season, shocked stakeholders, scientists, and other fisheries experts around the world.  For a fishery once worth $132 million per year and popularized by the reality-tv show Deadliest Catch, the speed, social impact, and potential longevity of this collapse is reminiscent of the closure of Newfoundland cod in 1992 where over 30,000 people lost their jobs overnight.  But compared to cod and many other fishery collapses that have historically been caused by overfishing, scientists recently published findings showing that the collapse of Bering Sea snow crab was likely a result of starvation driven by warming waters.  The authors of the study dubbed climate change, “the next existential crisis for fisheries,” with snow crab, “a prime example for how quickly the outlook can change for a population.”

But perhaps, in 2023, we shouldn’t be so surprised at devastating collapses and closures of fisheries like east Bering Sea snow crab. From lobsters, to forage fish, to great whales, climate change has been causing drastic shifts in the health and distribution of marine life around the world for years, “stirring chaos” for fisheries along the way. 

When the ocean had absorbed over 25% of CO2 emissions and 90% of excess heat from climate change by 2022, it’s only logical that some of the earliest detectable impacts of climate change are observed in the sea.  Impacts on marine biodiversity from marine heatwaves and other phenomena are not only an outcome of climate change, scientists also observe that the responses are so rapid, widespread, and precise that they can serve as useful indicators of its progress in near real-time.  Marine biodiversity and coastal communities can also be impacted from climate change related acidification, eutrophication, extreme storms, and other impacts.  The evidence is clear: climate change is a present threat for fisheries everywhere, and the danger will likely become more severe.  Even more resilient fishes, such as tunas and other highly migratory species that have widespread ranges and can tolerate a range of ocean temperatures, are expected to face significant contractions in suitable habitat, among other potential shifts in distribution.

What can fisheries do to prepare?  Fortunately, scientists have tackled this very question for several years, and there is a growing wealth of knowledge and resources available. Among a diversity of pathways for how fisheries can individually build resilience, recent research has highlighted the overarching importance of effective governance (including adaptive management and long-term planning), ecosystem-based fisheries management, and utilizing the best available science.  Social equity and resilience are also frequently integrated into climate change adaptation plans, and should be a feature of climate change resilient fisheries as well, including conflict resolution for disputes ignited by climate-change driven species range shifts.

Harvest strategies, or management procedures, are an example of one type of management tool that can facilitate adaptive management and can achieve several characteristics of climate resilient fisheries simultaneously:

  • Efficient and effective governance – Harvest strategies are ideal for climate change adaptation because they take a long-term view of stock health that can take into account climate change impacts over the next several decades.  They also streamline management decision making allowing for adaptive management over the short to medium-term, with built-in review points, which is ideal for navigating unforeseen impacts from climate change or other factors.
  • Best available science – Harvest strategies are based upon a scientifically rigorous process called management strategy evaluation (MSE).  MSE tests harvest strategies against a variety of potential scenarios, including the option to see how they may respond to several hypothetical climate change scenarios.  Managers and stakeholders can therefore see how different strategies might perform under a range of climate change impacts, and select that which performs the best for their goals for the fishery and any other sustainability objectives (e.g., UN SDGs), regardless of potential climate futures. 
  • Ecosystem-based fisheries management – Climate change can impact species directly, but indirect impacts can be just as harmful, such as the Eastern Bering Sea snow crab that was wiped out because of the impact of warming waters on their food source.  Under climate change, environmental management will increasingly rely on approaches that take the broader ecosystem into account.  As harvest strategies develop over time, they increasingly show the potential to move beyond single species management and embrace such wider perspectives of the ocean into their design, such as reference points for capelin that consider their role as a food source for cod in Canada and Norway.   
  • Social resilience and equity – By helping fisheries become more resilient against climate change, harvest strategies can help improve the socioeconomic resilience of the communities that depend on those fisheries and wider sustainability of global food systems.

These benefits for climate change resilience have been top of mind for us at HarvestStrategies.org as we work with Regional Fishery Management Organizations (RFMOs) to implement harvest strategies around the world. We are encouraged to see four of the five tuna-RFMOs have also formalized climate change advisory committees or workplans to more directly integrate climate change considerations into research and management (Table 1, see below).

But while there have been many accomplishments building climate change resilience in recent years, there is still more to be done. From November 30th to December 12th, governments from around the world will convene in Dubai for the 28th United Nations Climate Change Conference (COP28). Food sustainability is a major focus at this year’s event, including how to reduce carbon footprints and also make food production more resilient to climate change impacts, especially in developing countries. Over 3 billion people rely on fish for 20% of their daily protein intake, with some coastal communities up to 70%. With most tuna production from low-cost species such as Skipjack, these efforts to improve fisheries sustainability are important to both environmental conservation and global food security. COP28 is a reminder that climate resilient fisheries – and tools like harvest strategies that can help achieve them – play a central role in a broader conversation on how to achieve a food-secure, sustainable future for the planet.

Table 1: tuna-RFMO climate change resolutions

RFMOMeasureDescription
Western and Central Pacific Fisheries Commission (WCPFC)Resolution 2019-01Adopted in 2019, resolves to consider potential climate change impacts on highly migratory fish in the region, consequences on economies and food stability for relevant communities, support additional science on climate change impacts, and other actions.
The Indian Ocean Tuna Commission (IOTC)Resolution 22/01Adopted in 2022, commits to consider the potential impacts of climate change on tuna stocks, bycatch, and other species in the ecosystem in the development of new measures, support further scientific research on climate change and tuna stocks, for the Scientific Committee to advise the Commission on climate change when requested, and other activities.
International Commission for the Conservation of Atlantic Tunas (ICCAT)Resolution 22-13Adopted in 2022, a commitment to consider climate change impacts on target stocks, support additional climate change-focused research and data collection, consider how fishing activity may be impacted by climate change, and other activities, and to initiate the climate change work “without delay” including climate change focused meetings beginning in 2023.
Inter-American Tropical Tuna Commission (IATTC)Resolution C-23-10Adopted in 2023, a commitment to include climate change as an agenda item for the Working Group on Ecosystem and Bycatch (EBWG), the Scientific Advisory Committee (SAC), the annual Commission meeting, the next science strategic plan, and other activities.

Building on last year’s harvest strategies successes, adoption for North Atlantic swordfish and more is on the table for 2023

The International Commission for the Conservation of Atlantic Tunas (ICCAT) made history in 2022 by adopting the first ever multi-stock management procedure (MP) for tuna with Eastern and Western Atlantic bluefin. This MP should be finalized this year by adopting an exceptional circumstances protocol (ECP’s) that would guide management in the case of unforeseen events (for example, a lack of critical input data). The bluefin MP and draft ECP’s followed on the 2017 MP for North Atlantic albacore, which has become another MP success story, recovering the stock and leading the recommended TAC for 2024-2026 to be the highest it’s ever been. ICCAT has momentum, and fisheries experts around the world are keen to see how the Commission plans to build from these successes.

The answer will come very soon. ICCAT has the potential to double the number of species it manages with MPs at its 2023 Commission meeting that begins on November 13th. Up for adoption is an MP for North Atlantic swordfish, an effort led by the major fishers, Canada, the United States, and the EU. Once so depleted that it attracted the attention of celebrity chefs who advocated for consumers to “Give Swordfish a Break,” the North Atlantic stock has seen an inspiring recovery led by ICCAT and member governments. 2023 could be the year ICCAT officially cements the stock’s future by adopting an MP that helps maintain its healthy status and fishery abundance for years to come.

Development of an MP for Western Atlantic skipjack tuna also made great progress this year following agreement on preliminary management objectives at last year’s annual meeting.  A small stock compared to most tropical tuna fisheries, this MP could have an outsized impact as the first fully implemented MP for skipjack, the most frequently caught tuna and the third most frequently caught fish in the world.  It would also be ICCAT’s first MP for a tropical tuna. With the technical work led by Brazilian scientists, it is also a symbol of the growing influence the global south is finally having at tuna-RFMOs, which have traditionally been primarily influenced by wealthier countries in North America, Europe, and Asia.  However, as of November 8th, there is still no proposal posted on the meeting website from Brazil to tee up this MP for adoption despite endorsement from the ICCAT scientific community and potential support from other influential CPCs  If there’s no proposal this year, this would be a major lost opportunity for Brazil as the leading harvester and ICCAT at large. 

But there is another positive development for tropical tunas this year.  In continuing its tradition of pioneering the science behind MPs and management strategy evaluations (MSE) on which they’re based, ICCAT has committed to manage all the remaining major tropical tuna stocks under its governance in the world’s first multi-species MP for bigeye, yellowfin, and eastern Atlantic skipjack tunas.  The United States has submitted a proposal for preliminary management objectives for the multispecies MP.  If adopted, this would help set ICCAT on track to adopt one of the most sophisticated MPs in history next year.     

But to help position this monumental effort for success, ICCAT scientists have called for additional capacity in the form of an external review of the MSE software, more direct feedback and communication lines with the Commission, and to formalize a MSE technical working group specifically for the multi-species tropicals MSE.  The Commission meeting will be an important time to finalize these plans including to agree to specific meeting dates and for members to commit to attending them. 

2023 could be a milestone year for ICCAT if they can adopt an MP for North Atlantic swordfish, building upon the success of in-place MPs, while opening a new chapter with the potential to adopt their first MP for tropical tuna.  With ICCAT’s commitment to establish MPs for 8 stocks in the near-term, this would put them more than halfway to their goal.  With the extensive work on MSE and the upcoming multi-species MP, it will be essential to adopt the MPs for swordfish and skipjack to help clear the working calendar while also expanding the precedent for this important fisheries management tool. 

Webinar with representatives from all five tuna-RFMOs highlighted the importance of capacity building and other harvest strategy lessons learned.

In April of this year, Harveststrategies.org and FAO announced, “a bold new partnership to promote harvest strategy development and implementation for international tuna fisheries.” This four-year project aims to expand the knowledge base among fishery managers, scientists, industry, and other stakeholders on the benefits of harvest strategies (i.e., management procedures) for sustainable management of international stocks.  Among several mediums from an eLearning course to in-depth factsheets, this partnership is also producing a quarterly webinar series to bring together experts and interested parties to explore and debate a myriad of topics related to harvest strategies. 

The first webinar in this series took place on July 20, 2023, titled, “Taking Stock – Harvest Strategies at the tRFMOs” (watch the recording on YouTube here!).  Moderated by Shana Miller, Director of International Fisheries Conservation at The Ocean Foundation, the webinar had over 120 participants tune in to 6 panelists representing all 5 tuna-RFMOs plus an industry specialist.  In advance of our second webinar in the series on October 19th/20th, we’ve compiled the valuable insights of our expert panelists from the July session so you can get caught up to speed on what’s been discussed so far!

CCSBT (Commission for the Conservation of Southern Bluefin Tuna): 

  • Dr. Campbell Davies of CSIRO Environment kicked things off with a review of the first-ever harvest strategy for a tRFMO – southern bluefin tuna, adopted in 2011. As an important harvest strategy success story, lessons from this fishery included:
    • That, “the development and selection process [for harvest strategies] is highly technical, and can be abstract and confusing to stakeholders”;
    • Independent or external review is “central to trust [between relevant parties], particularly in contested situations, and facilitates better outcomes”;
    • Experience with the harvest strategy development process “generates better understanding and ownership”;
    • Benefits to the culture and quality of fisheries management – CCSBT went from, “contested and nonfunctional to orderly, functional and strategic,” once the harvest strategy was in place;
    • “Increased confidence and predictability of the management process for stakeholders”;
    • And other indirect benefits of harvest strategies include the ability to set bounds for the fishery and to provide a platform “to examine the value of new information and investment in research and monitoring.”

IATTC (Inter-American Tropical Tuna Commission):

  • Dr. Alexandre Aires-da-Silva, Head of Scientific Research Division for the IATTC Secretariat, then covered the progress of harvest strategies in the Eastern Tropical Pacific. This included an inside look at the early stages of implementing harvest strategies and lessons learned from challenges faced along the way such as:
    • The impact of COVID-19 on the workplan, particularly with respect to meetings and workshops;
    • The importance of representation and continuity of delegates, respectively, as limited representation and high turnover of government representatives has impeded progress;
    • The importance of effective meetings for RFMOs at large, including but also irrespective of MSE, as IATTC experienced unforeseen challenges to Commission-level meetings in 2020-2021 that limited progress for the RFMO in all areas;
    • The importance of sustainable funding to see the MSE work through completion, as IATTC was at risk of running out of funds by end of 2023 that would have delayed MSE work (Note: the funding was approved at the Commission meeting in August 2023);
    • And the value of workshops to improve capacity among member governments to engage in harvest strategy development, which IATTC has invested in significantly to advance MSE work in recent years.

ICCAT (International Commission for the Conservation of Atlantic Tunas):

  • Mr. Shingo Ota, the ICCAT Panel 2 chair, provided the overview of harvest strategies at ICCAT. In 2022, ICCAT made history by adopting a harvest strategy for Eastern and Western Atlantic bluefin tuna, the first ever multi-stock harvest strategy. Mr. Ota provided a thorough overview of the years of work that went into this uniquely complex harvest strategy, including the management options reviewed and selected at various stages. The presentation emphasized the following lessons for harvest strategy development:
    • That care be taken for the use and consistency of technical terms (e.g., to stay consistent whether using “harvest strategies” or “management procedure”);
    • Timing is key, and moments when the total allowable catch is likely to increase are ideal opportunities to introduce a harvest strategy;
    • There should be a specific reason to implement the harvest strategy in addition to overarching needs for lowering risk and increasing stability;
    • To understand that MSE takes time and effort, and to make sure that all parties involved understand beforehand that it is not possible to restart the MSE process once initiated even if people do not like the results;
    • And as harvest strategies are complex, long-term undertakings, to take care as to when different components of the harvest strategy are explained to managers and stakeholders.

IOTC (Indian Ocean Tuna Commission): Dr. Paul deBruyn, IOTC Executive Secretary:

  • Dr. DeBruyn provided an overview of harvest strategies at IOTC, which has so far adopted two harvest strategies for skipjack (2016) and bigeye tuna (2022) in the Indian Ocean. This included a review of steps for fully implementing the bigeye harvest strategy (including an allocation regime), which will be put into action in 2024, emphasizing the fact that work with harvest strategies does not end at adoption but requires diligent management throughout its operations. Lessons learned from Dr. DeBruyn’s presentation included:
    • The importance of fully specified harvest strategies over harvest control rules, which provide better certainty of both inputs and outputs;
    • The “constant” need for capacity building, especially due to turnover of individuals involved to make sure everyone stays on the same page;
    • The need to translate the technical aspects behind harvest strategies to the more practical management advice to help improve communication between scientists and managers
    • And to strike a balance between making the technical components of harvest strategies understandable without oversimplifying them. 

WCPFC (Western and Central Pacific Fisheries Commission):

  • Covering the largest of all tRFMOs by area managed, Rhea Moss-Christian (WCPFC Executive Director) provided an overview of WCPFC’s progress on harvest strategies for all 6 tuna stocks they manage independently or jointly with IATTC. Takeaways from WCPFC’s work so far have included:
    • The importance of capacity building, which was the most important and fundamental lesson, to ensure that there is both direct engagement with all stakeholders and that those stakeholders are “in a position to implement harvest strategies when they’re adopted”;
    • That there can be a resistance to change and new management approaches, and that the Commission is patient and accepts small changes over time, when necessary; 
    • To remember that progress is possible, as seen with several stocks in WCPFC, and to maintain focus despite setbacks to realize these “small gains”;
    • That markets can be an important driving factor and that “we cannot ignore or separate our work from the demands on the consumer side”;
    • The importance of fostering a dialogue between managers and scientists, which has been a challenge.

Industry panelist:  Mr. Brian Jeffriess, Chief Executive Officer, Australian Southern Bluefin Tuna Industry Association (ASTBIA)

  • The session also included remarks from Brian Jeffriess, the CEO of the Australian Southern Bluefin Tuna Industry Association (ASTBIA). Mr. Jeffriess provided a retrospective on the perceptions of several groups of stakeholders on harvest strategies since the adoption of Southern bluefin tuna that led to a series of unexpected lessons learned including that:
    • Through increased confidence in the science, harvest strategies can lead to increased investment in fisheries science;
    • By helping stabilize the fishery, harvest strategies have helped increase the confidence of financial institutions in the Southern bluefin tuna fishery, which can help the fishery gain access to preferential financing;
    • The harvest strategy has given CCSBT industry stakeholders the confidence to increase long-term investment in the fishery;
    • And that industry stakeholders should not be afraid of change, and in the experience of Southern bluefin tuna, slower change and more conservative increases helped avoid big changes to the fishery that industry stakeholders were afraid of.

One of the overarching takeaways from these presentations was the emphasis on capacity building to help managers and other stakeholders better understand harvest strategies as fishery organizations work to scale this science-based approach around the world.  This can come through several mediums, from workshops to designated science-management dialogue groups, among others. Here at www.harveststrategies.org, we’re trying to facilitate that capacity building by developing a multimedia suite of open access communications tools in multiple languages. 

Don’t forget to register here for our next webinar, which will focus on harvest strategies for tropical tunas, scheduled for October 19th/20th, depending on time zone!

Harvest Strategies for Tropical Tunas – Benefits and Challenges (2023)

With albacore adoption, IATTC sets up WCPFC to finalize the first trans-Pacific harvest strategy.

Near Victoria’s bustling waterfront, history was made on Friday during the annual Commission meeting for the Inter-American Tropical Tuna Commission (IATTC), hosted by the Canadian government in the British Columbia capital.  In addition to progress on fish aggregating devices (FADs), vessel monitoring systems (VMS), and sharks, harvest strategies were one of the most prominent headlines with the adoption of a harvest strategy for North Pacific albacore.

After nearly a decade of work, with leadership from Canada, the United States, and Japan, North Pacific albacore is now IATTC’s first harvest strategy based on a management strategy evaluation (MSE).  This accomplishment was monumental not only for the economic importance of the fishery and the amount of work invested in it, but also because it now has the opportunity to become the first trans-Pacific harvest strategy if a complementary measure is adopted by the Western and Central Pacific Fisheries Commission (WCPFC) at its Commission meeting in December.  

This year’s measure follows up on IATTC’s commitment from 2022 to adopt a joint harvest strategy with WCPFC for the stock based on agreed upon management objectives and reference points.  It fully specifies the harvest control rules, including a corresponding equation to set fishing intensity, while also providing a method and timeline for reviewing the harvest strategy beginning in 2030.  Pending adoption by WCPFC in December, it also directs IATTC to coordinate with International Scientific Committee for Tuna and Tuna-Like Species in the North Pacific (ISC) to advise how the fishing intensity translates to on-the-water management beginning next year.  This work will include balancing catch allocation across both IATTC and WCPFC, as well as individual North Pacific albacore fisheries within each RFMO divided by gear type (e.g., long liners, surface gear). 

The adoption of this harvest strategy comes at a critical point when climate change is impacting fisheries globally and sets an important precedent for future harvest strategies as IATTC undertakes an ambitious agenda for this sustainable fisheries policy in the next two years. Next up will be bigeye tuna, set for adoption in 2024.  Beyond that, yellowfin and skipjack are also on the agenda, as well as another joint harvest strategy with WCPFC for Pacific bluefin.  Opportunities may arise for additional species as well.  Another exciting outcome of the IATTC Commission was the adoption of a new measure that requires research and management for dorado (mahi mahi), for which an MSE was previously completed in 2019.  This measure could help jumpstart a potential updated MSE and harvest strategy for this valuable stock as well. IATTC did not adopt a measure based on the prior MSE because of disagreement on whether they had the authority to manage the stock; this measure clarifies the answer to that question.

The Commission also adopted a new climate change resolution ensuring it will be a dedicated subject for the organization’s science and Commission meetings.  Importantly, the measure directs staff to include climate considerations in future MSEs, demonstrating the recognition of harvest strategies as a climate adaptation tool that can make fisheries more robust to climate change impacts. 

How can IATTC deliver on all these expectations?  Up until this point, IATTC contracted external scientists to support MSE work.  But at last week’s meeting, IATTC made an important decision to include an additional full-time staff member for MSE as part of next year’s budget.  This new capacity and long-term investment in MSE puts IATTC in a strong position to adopt the bigeye harvest strategy on schedule, in 2024, to then move to harvest strategies for other stocks that will follow, and finally to help further integrate climate change considerations into the work.

The sound of the gavel at the Commission’s conclusion ushered in a new era of sustainable fisheries management for the eastern Pacific.  IATTC has now joined the club of other tRFMOs that have applied MSE and harvest strategies for their fisheries, and a growing community of RFMOs that are formalizing their focus on climate change.  The adoption of the harvest strategy for North Pacific albacore, and other related measures for MSE, signal that harvest strategies are no longer an emerging tool for managing fisheries.  They are the present, now utilized in every tRFMO today.  And they are also the future, for their role in helping fisheries adapt to climate change and a more unpredictable ocean in the years to come.

Now the question remains, will WCPFC solidify these accomplishments by adopting the North Pacific albacore harvest strategy in December? Since the champions at IATTC, namely Canada, the U.S. and Japan, are all members of WCPFC, and WCPFC’s Northern Committee already endorsed the harvest strategy last month, things look promising.

Restoring Pacific saury to a predictable and productive fishery

The 2023 SAC meeting is an opportunity to get IATTC ship-shape for harvest strategies now, and those to come

Fed by nutrient-rich waters upwelling from the deep, the Eastern Pacific is home to ecosystems like the California and Humboldt currents that are some of the most productive fishing grounds in the ocean. Tuna fisheries and other highly migratory species in this important region are managed by the Inter-American Tropical Tuna Commission (IATTC). Next week, IATTC’s Scientific Advisory Committee (SAC) will convene for its 14th annual meeting to discuss and finalize scientific recommendations to the upcoming Commission meeting where measures can be adopted.

With much work still to do, harvest strategies and management strategy evaluation (MSE) will be one of the most important topics on the agenda.  Bigeye tuna is the most pressing, with the need to better specify management objectives from which to base the MSE and eventual harvest strategy scheduled to be adopted next year.  These steps will be crucial to the long-term sustainability of this fishery, which in recent years has seen declining catches and is overfished.

Discussions on MSE next week also present opportunities to make progress toward harvest strategy adoption at IATTC. Items on the agenda include a new recommended target reference point for skipjack tuna and a proposed measure to introduce interim limit reference points for all IATTC managed species that don’t yet have them established. The meeting is also a chance to advance management of dorado (or mahi mahi) via a harvest strategy.

Equally important, the MSE discussions are also relevant to harvest strategies pursued for additional fisheries jointly managed between IATTC and the other tRFMO present in the world’s largest ocean, namely the Western and Central Pacific Fisheries Commission (WCPFC). Since they traverse the entire North Pacific, stocks like Pacific bluefin tuna and North Pacific albacore tuna fall under the jurisdiction of both IATTC and WCPFC. Albacore in particular is in position to adopt a precautionary harvest strategy this year following IATTC’s adoption of management objectives and reference points in 2022, and subsequent agreement and adoption by WCPFC later in the year. Both 2022 measures call for adoption of a full harvest strategy with harvest control rules this year. That depends on IATTC adopting a measure at the August annual meeting, which will then hopefully be mirrored at the WCPFC annual meeting in December. The SAC meeting will be an important step in the road towards adoption, and the IATTC staff has already recommended adoption of a complete harvest strategy this year.

A harvest strategy for Pacific bluefin, which is scheduled to be adopted in 2025, is also much needed as the abundance of this species is just recovering from severe depletion to 2% of its original population size.  Governments, scientists, seafood companies, and environmental organizations are eager to start seeing results from 15 collective years of hard work developing harvest strategies for these two species.  2023 must be the year that a harvest strategy is adopted for North Pacific albacore, and candidate reference points and management procedures agreed to advance the MSE testing for Pacific bluefin.  The SAC has a golden opportunity to help advance both of these issues by providing concrete recommendations from next week’s meeting.

With all this in mind, the elephant in the room is how can IATTC achieve an impressively ambitious agenda to adopt harvest strategies?  In addition to making concrete technical recommendations, IATTC can also benefit by making administrative arrangements to develop and review harvest strategies as efficiently as possible. For example, the IATTC SAC agreed to terms of reference for a science-management dialogue group several years ago, but the group has not yet been formally established.  A sub-group like this could foster focused discussions to help make as much progress as possible under limited time and resources. An example of a potential benefit could be streamlined review and recommendations of candidate management objectives for bigeye tuna that must be finalized this year so the Commission can adopt a harvest strategy in 2024.  And in the interest of thinking about harvest strategies still to come, a science-management dialogue group would facilitate harvest strategy development for other tropical species in the pipeline such as yellowfin tuna and skipjack. 

Furthermore, substantial time and resources have been invested in IATTC’s MSE workshops, but these arrangements are not able to make any formal recommendations to the Commission.  The SAC should resurrect and strongly recommend formation of a science-management dialogue group, which all of the other tRFMOs already have, as the MSE workshops lack the direct influence needed to make progress. This should be an easy task with the terms of reference having already been agreed to.

In conclusion, while it is a primary goal of the IATTC SAC to catalyze advancement of individual harvest strategies like bigeye tuna, this marks only the beginning of what will be a busy three years for harvest strategies in the Eastern Pacific.  IATTC would benefit greatly by being proactive and setting itself up for success ahead of time as these deadlines approach.  Focused groups like a science-management dialogue group will help ensure an efficient process for reviewing and recommending measures for the Commission to consider.  And agreement to the proposed MSE workplan to keep IATTC harvest strategy development on track, which the SAC should endorse, would help the Commission achieve policies like harvest strategies that could maintain the sustainability of several fisheries for years to come. 

On World Tuna Day 2023, all eyes are on the Indian Ocean

Did you know that there’s an official UN recognized day for tuna?

On May 2nd, World Tuna Day celebrates the day in 2016 that governments around the world publicly agreed on the need to manage tuna stocks sustainably, emphasizing the importance of conservation management. It’s also a moment for governments and stakeholders – industry and environmental, alike – to help bring awareness to the importance of tuna fisheries for socioeconomic benefits like food security and economic opportunity.

And 2023 is a special year for World Tuna Day because recent global efforts to improve the sustainability of tuna fisheries are starting to see results. A scientific study published last November found that, contrary to most other types of wildlife, oceanic tunas have actually seen notable recoveries in abundance in the last decade.  Those that are seeing positive change are rare but important examples of sustainability against global trends of biodiversity loss.

Much of this improvement has been driven by regional fishery management organizations (RFMOs) adopting longer-term thinking, embracing best-available science, and creating transparent and inclusive decision-making processes.  Perhaps no policy better encapsulates these three features than harvest strategies (or management procedures), the first of which was adopted in 2011 for Southern bluefin tuna by the Commission for the Conservation of Southern Bluefin Tuna (CCSBT).  This success story, where the harvest strategy quadrupled the stock’s abundance in less than ten years while also allowing catches to simultaneously increase, helped spark a wave of interest in harvest strategy development for tuna fisheries that has now begun to take hold.

Since then, harvest strategies have been adopted for an additional 6 tuna stocks in three other tuna RFMOs, with another nine with the potential to be adopted by the end of 2024.  As RFMOs capitalize on the past decade of development work in the next two years, reaching the tipping point toward adoption, World Tuna Day is a poignant moment to reflect on what has been achieved so far and the work still to come.  The first tRFMO commission meeting for 2023 where major decisions can be made will be held in Mauritius next week for the Indian Ocean Tuna Commission (IOTC).

IOTC is poised to make great progress on harvest strategies at the commission meeting next week and over the next year.  This RFMO was one of the earliest champions of harvest strategies, having notably adopted a harvest control rule (HCR) for skipjack tuna in 2016, the first partial harvest strategy for tropical tunas of any RFMO.  They furthered that legacy by adopting one for bigeye in 2022.

While IOTC’s efforts have been commendable, systemic issues have impeded these harvest strategies from achieving their objectives to date.  For skipjack, the HCR has not been effectively implemented yet. IOTC stands to greatly strengthen the harvest strategy for skipjack, and other current and future harvest strategies, by providing an allocation key to guide how catch limits are divided among member countries.  The lack of one has caused the fishery to exceed its total allowable catch by 16 – 30% each year from 2018 – 2021.  With IOTC slated to implement its new harvest strategy for bigeye tuna next year, similar overharvests could occur without urgent action this year to similarly allocate the catch.

Furthermore, the skipjack HCR is just that – only an HCR – which needs to be expanded to a full harvest strategy. IOTC deserves credit for having already initiated the work to do this, developing a new HCR with complementary monitoring protocol and assessment method. Agreeing on these additional elements is especially important as the inputs and assumptions are used in the HCR to calculate a catch limit that aligns with the harvest strategy’s management objectives. For consistent application, all elements need to be pre-agreed as part of a full MP. As part of this effort, IOTC is also developing a more robust management strategy evaluation (MSE) for skipjack, a crucial step as MSEs are the most important tool for scientists to analyze and decision makers to select a harvest strategy based on best available science.

As these improvements to skipjack are made for adoption of a full MP in 2024, IOTC is also poised to adopt harvest strategies for three more fisheries.  Swordfish and albacore are particularly well positioned to be adopted by 2024, with significant progress having been made on their respective MSEs and an opportunity to advance the science even further following feedback to be requested at the IOTC’s science-management dialogue meeting, called the Technical Committee on Management Procedures, later this week.  Yellowfin tuna also has the potential to adopt a harvest strategy next year. It’s been several years since Australia first tabled its MP framework for the overfished stock, but the MSE has been delayed pending improvements to the stock assessment, which also impact the MSE. It is important that these matters receive deserved attention at the Commission meeting, and achieving them will require an ambitious workplan with funding to support it.    

On World Tuna Day, IOTC is a prime example to build momentum and bring the investments in science and dialogue in the last several years into action.  Next week will be a critical step in the process to build from where IOTC began with skipjack in 2016.