A Strategy forrebuilding. Abalone Stocks in British Columbia

Transcription

1 A Strategy forrebuilding Abalone Stocks in British Columbia Report on the Workshop on Rebuilding Abalone Stocks in British Columbia Nanaimo, B.C., February 23-26, 1999 March, 1999 Prepared for Fisheries and Oceans Canada By Dovetail Consulting Inc. Vancouver, B.C. March 1999

2

3 A STRATEGY FOR REBUILDING ABALONE STOCKS IN BRITISH COLUMBIA Summary of the Report on the Workshop on Rebuilding Abalone Stocks in British Columbia, Nanaimo, B.C., February 23-26, 1999 Prepared for Fisheries and Oceans Canada By Dovetail Consulting Inc., Vancouver, B.C., March, 1999 This strategy to rebuild abalone stocks in British Columbia is based on discussions during a four-day workshop held at the Coast Bastion Hotel in Nanaimo, British Columbia, from February 23 rd to 26 th, The workshop participants were people with an interest in abalone, including First Nations, commercial and recreational harvesters, environmentalists and the provincial and federal government. Participants also included scientists and managers knowledgeable about abalone who made presentations during the first two days of the workshop. The Challenge of Rebuilding Abalone Stocks Historically, abalone provided a traditional fishery for First Nations and the species supported a commercial dive fishery from the 1970s until the late 1980s. DFO closed the fishery in December 1990 because of conservation concerns about the decline in abalone densities. The plan was to review the closure after five years, but surveys continue to show, nine years later, that stocks continue to decline. Abalone is now the only species with a total harvesting closure on the B.C. coast. This leads us to the present situation where we have to determine how to better encourage stocks to rebuild. Experience in other countries shows that British Columbia is not the only jurisdiction facing this challenge. Abalone fisheries have had to close in Alaska, California and the northwest states. Some abalone species in California are facing extinction. Stocks in South Africa and Australia have also been over-harvested. While some progress is being made in stock restoration world-wide, poaching continues to threaten rebuilding efforts in most places, as it does in B.C. To begin to meet the rebuilding challenge, workshop participants came together to clarify roles, expectations and shared interests; to examine abalone biology and ecology; to learn about rehabilitation efforts in other places; and to develop this strategy. The strategy forms the first step in a comprehensive plan for rebuilding stocks. Goals and Guiding Principles for the Strategy The primary goal of the Abalone Rebuilding Strategy for British Columbia is to conserve the abalone resource through the cooperative efforts of all involved parties. The secondary goals of the strategy, supporting the primary goal, are: A Strategy for Rebuilding Abalone Stocks in British Columbia, March, 1999 i

4 1. Halt the decline of wild stocks. 2. Develop self-sufficient recruitment and ensure healthy meta-populations (including conservation of genetic diversity) of abalone throughout its range. 3. Support the rebuilding of stocks to defined, optimal levels while ensuring ecosystem health (ecological integrity) for present and future generations. Fundamental to the strategy is the continued application of the hierarchy of priorities shaping the mandate of Fisheries and Oceans applies, namely: 1. Conservation; 2. Providing access for First Nations food, social and ceremonial needs as defined in the Constitution under Section 35(1); 3. Providing other opportunities for resource harvesting and use. Other guiding principles for the strategy are to: take a precautionary, ecosystem-based approach, be adaptive, foster cooperation and local community involvement, develop a sound information base, incorporate public education, and balance costs and benefits fairly. Key Elements of the Strategy Prevention of Illegal Harvesting Poaching is one of the most serious problems confronting efforts to rebuild abalone stocks. Actions required to prevent illegal harvesting include: Ensure enforcement coverage along the B.C. coast, focusing on problem areas. Bring together the necessary resources for enforcement activities, drawing on existing resources such as the First Nation fishery officers. Ensure that penalties are sufficient to deter illegal harvesting of abalone. Encourage community involvement in looking for violations and reporting them. Make the illegal harvest, sale and/or consumption of abalone socially unacceptable. Create an abalone DNA bank in cooperation with other countries, so that identification of abalone species (and their geographic origin) can support effective enforcement. Pass legislation that will allow enforcement staff to prosecute people for the possession of illegal product from other countries. Cooperate over the control of the resource to share information relevant to enforcement and to ensure that legal, farmed abalone can be distinguished from illegal, wild abalone. ii A Strategy for Rebuilding Abalone Stocks in British Columbia, March, 1999

5 Stock Restoration The goal for abalone stock restoration in BC is to restore/rebuild abalone stocks to reach (minimum) self-sustaining stock levels for viable populations in B.C. and, where possible, then reach maximum sustainable natural/historic stock levels. Priority actions for restoration include: Develop agreed upon, local target stock levels and specific strategies or interventions to reach target levels. Prioritize locations for stock restoration work. Restore stocks through stock interventions, habitat interventions, and community activities such as coast watch programs. Tap a wide array of potential resources, from governments to international agencies, universities and industry. A strategic approach to stock restoration requires the following: The fishery should be kept closed during the rebuilding process. Specific interventions should be prioritized in terms of economic and biological feasibility, while the vision should be long-term one (i.e., more than 10 years). Community buy-in (local support) is critical to success. As this is an international problem we need to work with our neighbors and other international stakeholders. Habitat Management/Ecosystem-based Management Fundamental to an ecosystem-based approach are the following actions or considerations: Manage human activities and use our knowledge of habitat and ecosystems to achieve the goal of sustainable populations. Recognize that humans are one source of impacts among many. Others include introduced species or recovery/re-introduction of species such as sea otters, and climate change affecting water temperature. Consider the interrelationships of these factors and their cumulative effects. Strive for more regionalized management with local involvement. Involve First Nations in the management and monitoring of the abalone resource. Improve our knowledge about impacts of human activities. Establish a system of Marine Protected Areas throughout the coast within which sustainable populations of abalone can exist. Undertake research to build the knowledge base on ecosystem-based management for abalone, in part by drawing on international experience. A Strategy for Rebuilding Abalone Stocks in British Columbia, March, 1999 iii

6 Stock Assessment Stock assessment has a key role to play in the rebuilding strategy. In particular, it should help in evaluating progress towards the goals of the rebuilding strategy by assessing changes in populations over time, and providing a monitoring and feedback tool to determine if the rebuilding strategy is effective. The top priorities for stock assessment are: Complete genetics work to allow for species identification, and as funding allows, the identification of stocks to support enforcement efforts. Complete baseline surveys to identify meta-populations and suitable study sites. Engage in public education and outreach. Actions for stock assessment include: Compile and review existing information and knowledge. Use quantification and surveys to determining biological stock attributes, to monitor indicators related to other ecosystem components, and to map data. Interpret data to understand dynamics. Monitor changes over time in key ecosystem components, recruitment, regime shifts, patch size, and other physical parameters of habitat. Make the results of stock assessment available to various target audiences, including the public, user groups, enforcement, and politicians. Apply stock assessment data to identify refugia. Abalone Aquaculture Abalone aquaculture is a legitimate component of the Rebuilding Strategy because it can be a useful rebuilding tool; for example it provides a safe haven for rearing abalone out of the wild environment. Effective development of abalone aquaculture in B.C. depends on the following approaches: An experimental approach should be taken, to ensure that we learn from aquaculture and enhancement projects through research, monitoring and evaluation. The risk of failure must be taken into account. Aquaculture must not be conducted to the detriment of natural stocks, and we need to ensure the protection of the existing resource through enhancement and enforcement parallel to aquaculture. Communities should be involved in aquaculture and enhancement. Meaningful consultation with the First Nations on the coast, and the approval of First Nations for aquaculture initiatives in their traditional territories, is essential. Commercial requirements for a viable abalone aquaculture enterprise include the creation of a favourable economic climate that will be attractive to investors, iv A Strategy for Rebuilding Abalone Stocks in British Columbia, March, 1999

7 providing certainty in areas such as access to brood stock, tax incentives, and government policies. Partnerships or at least collaboration with government is necessary to achieve the goals of both farmers and enhancement. Communities and the general public need assurances of environmental sustainability and good regulation of the industry. To this end, DFO and provincial agencies should work with First Nations and aquaculturists on an MOU as a pre-requisite for the development of aquaculture. Strategy Implementation Actions that are critical to the success of strategy implementation are: Seek broad ownership of and buy-in to the strategy. Raise public awareness. Make and communicate the initial hard choices for management of abalone. Make information central to management. Include ecosystem components in management approaches. Pilot projects are key to taking action and building community support for management of abalone. Care should be taken when initiating pilot projects that they are part of the overall strategy for abalone management and help to meet the objectives for the strategy. Given the importance of abalone to First Nations culture and communities, and the loss of access to the resource for perhaps an entire generation, First Nations peoples need to be involved in a bottom up strategy. Consultations and ongoing cooperation must continue on a government to government basis. A rebuilding strategy will not be effective without the commitment of First Nations because of their key role as stewards of the resource, especially in parts of the coast which are populated only by First Nations communities. First Nations could be the champions of the rebuilding strategy. A cooperative effort is essential to the success of the strategy. The highest level at which cooperation has to occur is international. Here in B.C., to move the strategy forward, we need to identify what current programs can contribute. Strategy implementation needs to be linked to existing initiatives such as the Marine Protected Area Strategy and Integrated Coastal Zone Management. DFO will continue to be the appropriate lead body for the Rebuilding Strategy. The agency needs to supported and advised in this role by a group representing those interested in abalone. Options for coordinating bodies for strategy implementation include an Abalone Advisory Committee, Abalone Research Team(s), an Abalone Action Team or Committee, an Abalone Council of British Columbia, or Regional Management Boards. Options for funding strategy implementation include: Establish or enlist the support of a non-government foundation that could take on funding for management of abalone as an issue. A Strategy for Rebuilding Abalone Stocks in British Columbia, March, 1999 v

8 Collect fees for supporting abalone management actions from commercial resource users, providing an additional option to which users could direct their surcharge. Collect fees from recreational users or abalone harvesters through an abalone stamp (similar to a California program). The workshop organizing committee needs to develop a timetable for actions to complete the rebuilding strategy and begin implementation over the next 2 to 12 months. A more detailed critical path for strategy implementation, with budgets, timelines and assigned responsibilities has to be developed. Moving forward over the next couple of years, some implementation activities could happen concurrently, shortening the time frame that would be required for sequential implementation of initiatives. However, projects should not be launched without sufficient knowledge, or to the detriment of a bottom up approach. Everyone must acknowledge that the duration of commitment required to rebuild abalone stocks will be long, in the order of decades. Monitoring and evaluation are required to determine whether the strategy is being implemented in the manner intended; whether the objectives are being achieved; and/or, the achievement of the objectives is resulting in the intended results. Monitoring should assess stocks as well as the human elements of the strategy (e.g., level of community buy-in and participation). Milestones will have to be established to act as stepping stones for progress towards the end result. vi A Strategy for Rebuilding Abalone Stocks in British Columbia, March, 1999

9 TABLE OF CONTENTS 1 INTRODUCTION THE CHALLENGE OF REBUILDING ABALONE STOCKS Overview The Situation in British Columbia Concerns, expectations, interests Status of the northern or pinto abalone, Haliotis kamtschatkana, in B.C The International Context STRATEGY GOALS AND GUIDING PRINCIPLES The Goals of the Abalone Rebuilding Strategy Guiding Principles for the Strategy ACTION AREAS Prevention of Illegal Harvesting Ensuring Enforcement Coverage Resources for Enforcement Penalties Community Involvement Education DNA Data Legislation Cooperation over the Control of the Resource Stock Restoration Definitions Restoration Targets and Objectives Restoration/Rebuilding Options Resources for Restoration Strategic Considerations Habitat Management/Ecosystem-based Management Strategic Considerations First Nations Stewardship Improved Knowledge about Impacts of Human Activities Marine Protected Areas Research Stock Assessment Priorities and Objectives Definitions and Approach Review of Current Knowledge Quantification and Surveys Data Interpretation to Understand Dynamics Monitoring...19 A Strategy for Rebuilding Abalone Stocks in British Columbia, March, 1999 vii

10 4.4.7 Reporting, Communication and Public Education Application of Stock Assessment Data to Identify Refugia Abalone Farming Aquaculture, Farming and Enhancement Experimental Approach Environmental Sustainability Social Sustainability and Community Involvement Working with First Nations Economic Sustainability/Viability Access to Broodstock Collaboration STRATEGY IMPLEMENTATION Critical Success Factors Seek Broad Ownership of and Buy-in to the Strategy Raise Public Awareness Make and Communicate the Initial Hard Choices for Management of Abalone Make Information Central to Management Include Ecosystem Components in Management Approaches Pilot Projects First Nations and Community Involvement Coordination Option A: Abalone Advisory Committee Option B: Abalone Research Team(s) Option C: Abalone Action Team or Committee Option D: Abalone Council of British Columbia Option E: Regional Management Boards Funding Time Frame Strategy Monitoring and Evaluation...32 APPENDIX 1: THE ABALONE SONG...33 APPENDIX 2: WORKSHOP AGENDA...34 APPENDIX 3: WORKSHOP PARTICIPANTS...37 viii A Strategy for Rebuilding Abalone Stocks in British Columbia, March, 1999

11 1 Introduction This strategy to rebuild abalone stocks in British Columbia is based on government and stakeholder discussions during a four-day workshop held at the Coast Bastion Hotel in Nanaimo, British Columbia, from February 23 rd to 26 th, 1999 (see Appendix 2 for the workshop agenda). The main components of the strategy were generated by facilitated working groups on February 25 th. Working group participants were stakeholders and government representatives, including First Nations, as well as scientists and management specialists who had made presentations during the first two days of the workshop (see Appendix 3). On the morning of the 26 th, workshop participants agreed in principle to a draft strategy and suggested some changes. This version of the strategy incorporates the changes put forward during the closing sessions of the workshop on the 26 th. The strategy has also been modified from the first working draft in the following ways: some ideas from discussions during plenary workshop sessions have been included; some points from presentations of research results by managers and scientists have been incorporated; the text has been edited to remove errors and improve clarity; a summary of the strategy has been added. Every attempt has been made to maintain the integrity of the draft strategy that was reviewed at the workshop so that support in principle of workshop participants can continue to be assumed. The strategy is organized into four parts, after this introduction: Section 2 describes the challenge of rebuilding abalone stocks, setting out the current situation and problems we face. Papers presented at the workshop on the 23 rd are the source of information for this section. Section 3 sets out the goals and principles guiding the strategy, as generated and agreed upon by workshop participants. Section 4 is the main body of the strategy, describing objectives and approaches in five action areas. Section 5 describes factors involved in the implementation of the strategy. Appendix 1 records a celebration of abalone through lyrics to a song. Appendix 2 is the workshop agenda. Appendix 3 is a list of workshop participants. A Strategy for Rebuilding Abalone Stocks in British Columbia, March,

12 2 THE CHALLENGE OF REBUILDING ABALONE STOCKS 2.1 Overview Chris Dragseth, DFO s Area Director for South Coastal B.C., opened the workshop with an overview of the challenge of rebuilding abalone stocks. His presentation set the scene for the workshop, explaining the need for a re-building strategy. Following is a brief summary. Historically, abalone provided a traditional fishery for First Nations and it supported a commercial dive fishery from the 1970s until the late 1980s. DFO closed the fishery in December 1990 to allow stocks to rebuild, assuming that the closure would remain for perhaps 5 years, but surveys show, 9 years later, that stocks continue to decline. This leads us to the present situation where we have to determine how to better encourage stocks to rebuild. We need to clarify roles, expectations and shared interests; we need to examine biology and population ecology; and we need to develop the action components of a strategy. First Nations and other coastal communities will have to play a key stewardship role, in part because DFO resources are already at their maximum. These needs led DFO (Fisheries and Oceans Canada) to hold the rebuilding workshop. The workshop gathered together a diverse group of people from many communities of interest as well as First Nations to share experiences, academic and local knowledge - all towards the rehabilitation of stocks. The workshop forms the first step in a comprehensive strategic plan for rebuilding stocks. The strategy will provide a framework for the rehabilitation plan, although there will be some constraints, including government s fiscal constraints. 2.2 The Situation in British Columbia Concerns, expectations, interests First Nations interests: Gary Rees, of the Tsimshian Tribal Council, and Russ Jones of the Haida Nation spoke from the perspective of First Nations peoples who harvested abalone for food, social and ceremonial purposes from pre-recorded time until the closing of the fishery in Abalone was consumed cooked, fresh and dried and its shell was used in artwork such as blankets and jewelry. It had a high commodity trade value. During the years of the licensed fishery, First Nations fishers did not qualify for licenses. The current lack of access to even a food, social and ceremonial harvest is a hardship, but the need to let the stocks recover is acknowledged. Both speakers pointed out that problems of enforcement are having a severe impact on stock recovery. Several First Nations participants stated that their governments have not been adequately consulted by DFO in the past and the agency must begin to open its ears to the 2 A Strategy for Rebuilding Abalone Stocks in British Columbia, March, 1999

13 concerns of their communities, especially considering that they are the people closest to the abalone resource and have a long history of looking after it. Community interests: First Nations communities are the main population on the coastal areas of B.C. where abalone are important. Nonetheless, non-native communities also have an interest, primarily from a community economic development perspective. This interest is represented by organizations such as Community Futures and the Seafood Development Office. The latter works on seafood diversification and is funded by the Skeena-Charlotte Regional District, B.C. Fish, and the federal Human Resource Development Corporation (HRDC). Aquaculture interests: David Johnson from the company, Ethelda Bay Ventures, presented an aquaculture perspective. The basic interest in abalone in this case is financial, and entrepreneurs have already invested many thousands of dollars in developing the abalone farming industry. These business people believe that there are several exceptional sites for farming abalone in B.C. and that they have sufficient scientific knowledge, practical expertise and marketing know-how to farm successfully. The only thing lacking is a policy and regulatory framework in which to operate. Abalone farming could contribute to rebuilding by educating the public and bringing down the price of abalone by increasing supply, thereby reducing illegal harvest. A representative of the B.C. Shellfish Growers Association stated that the Association could help work out conflicts that might emerge with new initiatives. Recreational interests: The Sport Fishery Advisory Board represents a large recreational interest in shellfish, including abalone. Recreationists enjoyed abalone for personal consumption, and there is commercial recreation potential as well. Diving-related tourism is popular on the B.C. coast, and the ability to take abalone would be an added draw. Commercial interests: A commercial abalone fishery started expanding significantly in 1972 due to advances in diving technology, restricted access to other fisheries, speculation, available capital to invest in technology (e.g. freezers), unrestricted access to non-licensed species, a developing market in Japan, an attractive price, and accumulated stocks in the absence of predation. Annual landings increased rapidly to 433 tonnes in 1978 but then declined to 47 tonnes in 1985 as increasingly restrictive management measures were applied in an attempt to establish sustainable harvests. This was one of the first ITQ fisheries, with quotas being imposed in Licences were limited to under 30 in total. Some commercial fishers felt that at the time of the closure in 1990 stocks were still healthy enough to support a commercial fishery. Conservation interests: Virtually all participants in the workshop hold an interest in the conservation of abalone stocks, as demonstrated by their willingness to invest time and effort into the Rebuilding Strategy. Specific representatives of the conservation perspective at the workshop included people from the Canadian Parks and Wilderness Society and Gwaii Haanas, but points in favour of conservation were made by a variety of participants. As one put it, Our primary purpose is a moral one... We have to do right by abalone. A Strategy for Rebuilding Abalone Stocks in British Columbia, March,

14 2.2.2 Status of the northern or pinto abalone, Haliotis kamtschatkana, in B.C. Abalone is currently the only species with a total harvesting closure on the B.C. coast. Prior to 1990, densities had declined to less than one per square metre from previous levels of 2-3 per square metre. DFO assessment surveys since 1990 have shown a further decline in abalone abundance at key index sites on the central coast and Haida Gwaii/Queen Charlotte Islands. While declines are likely biologically related and the effects of poaching are difficult to quantify, the Department does agree that illegal harvesting is a contributing factor. Some enforcement officers believe that the current illegal take is equal to the last commercial harvests. The biological characteristics of abalone make it vulnerable to exploitation by poachers, in that the species has a short larval period, is slow growing, is relatively long lived, is sedentary, is accessible in shallow waters, and has low or sporadic recruitment. The negative impacts of poaching on recovery are severe because the loss of mature abalone reduces the reproductive potential at the same time as it depresses populations. And enforcement against illegal harvesting is very difficult. One challenge is making a case against poachers in court because of an inability to identify where the product was taken from. Another is the use of counter-surveillance tactics by poachers. Many gaps in our knowledge about abalone pose challenges to the rebuilding effort. We need to know more about: spatial frequency, patch size and density of abalone; environmental conditions required to maintain sufficient recruitment for healthy populations; the optimal distribution and density of abalone spawners and recruits and their growth and mortality rates; and the efficacy of brood stock transplant and juvenile seed restocking methodologies. 2.3 The International Context Currently, no legal harvest of pinto abalone is allowed throughout the Pacific Northwest, and serious management problems have arisen in other jurisdictions as well. Presentations by three scientists demonstrated that abalone stock rebuilding is a very tough challenge, apparently around the world. California: Konstantin Karpov and Peter Haaker reported significant declines in five abalone species in California. Declines resulted from increasing fishing pressure, expanding sea otter populations, disease and reduced food availability due to climate factors. Serial declines occurred as fishing pressure moved from one area to another and one species to another. Multi-species landings masked individual catch declines. Declines were precipitous when populations fell below the density required for reproduction. While all five species declined by over 90%, catch per unit effort (CPUE) figures showed little drop-off before the collapse. At the same time, value per landing grew as world price for abalone increased. At least one species is now threatened with extinction. In southern California, it will be decades before a sport or commercial fishery can re-open. 4 A Strategy for Rebuilding Abalone Stocks in British Columbia, March, 1999

15 Alaska: Doug Woodby described a boom and bust cycle of commercial abalone harvesting in Alaska as well. Similarly to California, CPUE was maintained as abundance declined, and mixed stock harvesting also masked declines. Increasing product value and threat of limited entry increased the number of divers to the stage where, given declining stocks, the commercial fishery was unmanageable and it was closed in A subsistence and recreational harvest is able to continue without risk of further damage to the populations. It will take at least 3 to 5 years of research to determine whether a commercial fishery is possible. Naturally low levels of productivity and the re-introduction of sea otters might prevent re-opening. South Africa: Rob Tarr described South African abalone fisheries as a fishery in crisis. A commercial fishery has operated in the very south of Africa, around Cape Town, since Declines led to a total allowable catch (TAC) system being introduced in The fishery appeared to be recovering in the early 1990s but it might now be heading towards collapse. Poaching has always been present at low levels, and, when community expectations for access were raised but not met in 1994, it increased dramatically. Recruitment to the fishery has been negatively affected and larval production greatly reduced. Violence and organized crime are part of the illegal harvest scene. Co-management, ranching and stock enhancement are all being explored, but poaching, increased recreational catches and ecological changes lead to a poor prognosis for the fishery. Note that several other experts from around the world presented research results on the second day of the workshop. These pieces of the rebuilding puzzle are not summarized here because the information is presumed to have been integrated into the action areas of part 4 of the strategy. A Strategy for Rebuilding Abalone Stocks in British Columbia, March,

16 3 STRATEGY GOALS AND GUIDING PRINCIPLES 3.1 The Goals of the Abalone Rebuilding Strategy The primary goal of the Abalone Rebuilding Strategy for British Columbia is to conserve the abalone resource through the cooperative efforts of all involved parties. The secondary goals of the strategy, supporting the primary goal, are: 1. Halt the decline of wild stocks. 2. Develop self-sufficient recruitment and ensure healthy meta-populations (including conservation of genetic diversity) of abalone throughout its range. 3. Support the rebuilding of stocks to defined, optimal levels while ensuring ecosystem health (ecological integrity) for present and future generations. 3.2 Guiding Principles for the Strategy These guiding principles are overarching priorities that underpin every aspect of the Rebuilding Strategy. All the objectives and action areas of the strategy have to be consistent with the guiding principles. Adherence to Established Hierarchy of Priorities: The existing hierarchy of priorities shaping the mandate of Fisheries and Oceans applies, namely: 1. Conservation; 2. Providing access for First Nations food, social and ceremonial needs as defined in the Constitution under Section 35(1); 3. Providing other opportunities for resource harvesting and use. Ecosystem Approach: The rebuilding strategy should adopt an ecosystem approach and encourage a shift in thinking away from a single species focus. Precautionary Approach: The strategy should adopt a precautionary approach to any allocation or management decisions, particularly given the species biological characteristics (e.g. slow growth rates) and the pressures facing abalone throughout its range in British Columbia. Adaptive Approach: Implementation of the rebuilding strategy should take an adaptive approach, using pilot projects to experiment with new approaches and monitoring to provide for evaluation of progress and feedback. Cooperative Approach to Shared Stewardship: The participation of a wide range of players, with good communication, is essential to the success of the strategy, from its development to its implementation. The strategy is a shared stewardship effort, involving international specialists, all levels of government, First Nations, coastal communities, stakeholders and other interested individuals. Emphasis on Local Community Involvement: Implementation of the strategy should emphasize local community involvement and partnerships, and adopt a bottom- 6 A Strategy for Rebuilding Abalone Stocks in British Columbia, March, 1999

17 up planning and management approach. There needs to be concentration, continuity and presence for management approaches to be effective. Local communities are better able to provide this than DFO. Relationships, trust and communication are needed if management is going to be effective. Diverse Information Base: The successful implementation of this strategy will depend on the recognition and effective use of varied sources of information, including management data records, traditional and local knowledge, and international science. Public Education/Awareness Raising: The effective implementation of this strategy depends on public outreach to build knowledge and awareness of the abalone resource, its status and importance. Balance of Costs and Benefits: The strategy should strive to ensure a fair balance of benefits and costs, with an emphasis on those coastal communities that are closest to the resource. A Strategy for Rebuilding Abalone Stocks in British Columbia, March,

18 4 ACTION AREAS This section sets out areas of action required to achieve the goals of the rebuilding strategy. Under the action area headings, issues, objectives and possible methods or approaches are set out. The emphasis within each area depends on the priorities of the working groups at the workshop which provided most of the material for this section. Sub-headings within the action areas generally refer to objectives for that action area. 4.1 Prevention of Illegal Harvesting Ensuring Enforcement Coverage It is important to ensure strategic enforcement coverage of the area. Several approaches can be used to achieve this objective, including dividing the coast into manageable chunks and key areas, and focusing efforts on problem areas. Other approaches include the following. Compile a database of habitats and beds. Identify isolated areas where poaching takes place. Identify sites visited by recreational divers privately or with charters. Identify the location of highest remaining densities, rather than all the areas with low densities of abalone. Identify where sea cucumber and urchin divers operate as they are continually working in areas with abalone populations. Conservation and Protection (DFO) should have the lead role in these efforts. Three key measures of success in this area are: an increased number of people who are caught and successfully prosecuted; a noticeable reduction in infractions; explicit commitment from senior managers and all interest groups to the protection and allocation of adequate resources Resources for Enforcement A set amount of money must be allocated specifically for enforcement against illegal abalone harvesting, without drawing resources from other enforcement activities. Possible approaches include the following. Draw from the experience and information base of commercial licensees and geoduck, sea cucumber and sea urchin harvesters; Draw on the First Nations community-based fishery officers ( guardians ) and expand their authority beyond observe, record and report to give them effective 8 A Strategy for Rebuilding Abalone Stocks in British Columbia, March, 1999

19 enforcement procedures (noting that this is the only practical approach in areas near First Nations communities that are remote from other enforcement resources). Use any fines collected for management. Provide non-monetary incentives to community groups (e.g., certificates, awards, and other forms of recognition) to encourage a personal stake in rebuilding the resource. DFO should play a lead role in this area, with the involvement of the Communications Branch. Efforts should also be made to tie in to existing community groups that are active in stewardship and communications activities. Two measures of success would be: illegal abalone harvest and consumption is considered socially unacceptable; and, survey results indicate that the population is growing Penalties Penalties are required to deter and prevent illegal harvesting of domestic abalone. Possible approaches include the following. Fines levied should go back into abalone management specifically (legislation already exists for this but is difficult to access). Make the public aware of convicted offenders (to bring public pressure onto the offender not to repeat). Ensure the judiciary is aware of the severity of the problem and that the penalty fits the crime by: - encouraging the participation of community groups in court proceedings by preparing impact statements for sentencing; - creating an inventory of community contacts and encouraging the involvement of groups to reinforce the magnitude of the issue; and, - communicating with the Department of Justice. Increase penalties current penalties are seen as a cost of doing business and are often based on fines from previous cases. The Fisheries Act allows for significant fines. (Coordination across BC is required regarding case law and precedents.) DFO and the Department of Justice should have the lead role in these efforts Community Involvement Communities must be actively involved in looking for violations and reporting them. One tool is a abalone number, or a TIPS line for reporting poachers, with assured confidentiality. Experience can be drawn from the Marine watch program that was set up in Tofino. As mentioned above, First Nations guardians should be provided with authority for local policing and enforcement. A Strategy for Rebuilding Abalone Stocks in British Columbia, March,

20 4.1.5 Education The illegal harvest, sale and/or consumption of abalone must be made socially unacceptable. The key to achieving this objective is to focus efforts on reducing the demand for illegal abalone through education. Actions need to increase public awareness of the critical state of abalone (near extinction), explain how this is a result of human activity, and convey the need to protect this resource. Specific actions include the following. Focus on education of children as a foundation to building future awareness of issues. Link to existing school programs (e.g. Salmonid Enhancement Program). Increase awareness with wholesalers, retailers, consumers and employees disgruntled employees are a prominent source of information. Tie into groups such as the World Wild Fund for Nature (WWF) which have large campaigns and funding programs. Provide information on roles and rights of First Nations. Provide information on who is doing the illegal harvesting and who is consuming the product. Set up displays at trade shows (recreational diving, etc.) and at the Vancouver Aquarium. Provide educational material when setting up refuges. DFO should play the lead role in these efforts, with links being built with the Teachers Federation, Ministry of Education, and local stewardship initiatives. A representative with responsibility for education and community involvement should be appointed to the Advisory Board (See Section ) DNA Data DNA knowledge is required to code Canadian abalone for identification of abalone species (and their geographic origin) to support effective enforcement. A DNA bank is central to enforcement and also relevant to other aspects of rebuilding. This should be an immediate priority, undertaken in cooperation with other countries. Non-government resources have been offered to support the DNA research initiative, such as the use of a privately owned fleet of vessels. Recreational divers might also contribute to the collection of tissue samples Legislation To allow enforcement staff to prosecute people for the possession of illegal product from other countries, the following actions are required: Establish the DNA database. Develop legislation requiring that any imported abalone must have a DNA stamp as a form of identification. Establish an additional criterion for the issuance of an import permit that requires verification of the location of harvest. 10 A Strategy for Rebuilding Abalone Stocks in British Columbia, March, 1999

21 DFO should take the lead role in this area, in cooperation with Foreign Affairs. Support from stakeholders can also be provided through letters to members of parliament Cooperation over the Control of the Resource The capability must be developed to differentiate legal farmed abalone (provincial responsibility) from illegal wild abalone (federal responsibility), to enable effective enforcement. Several actions are required, including the following. Develop ways to distinguish between farmed and wild abalone (e.g. colour, stripes). Keep a accurate logs of farmed abalone with the destination of sales. Have DFO insist that methods of distinguishing between the two are in place as a condition for getting an abalone farming license. Ensure that potential aquaculturists are aware of these requirements up front and the process they must follow to get a licence. Develop a memorandum of understanding between DFO and the province to ensure that this issue is addressed before licences are granted. Effective enforcement depends on cooperation among many different players. DFO and provincial agencies need a joint approach. International coordination is critical. Parallel work on enforcement is being done in California, and resources could be pooled. Information should be shared between U.S. and Canadian researchers and enforcement agents. These efforts should extend to other countries as well. 4.2 Stock Restoration Definitions There is a need to define stock enhancement and its component elements: We are often referring to unit stocks when we discuss stock, but we must also consider how unit stocks are connected. Stocks are defined based on genetic analysis, historic data and so forth. The term enhancement means to improve, but there is a need to think about both rebuilding stocks that have failed ( collapsed stocks ) and enhancing or improving stock levels above their minimum viable population levels. The preferred term is stock restoration. Terms such as rebuilding or restoring have broader connotations than enhancement, and thus fit with the goal below Restoration Targets and Objectives The goal for abalone stock restoration in BC is to restore/rebuild abalone stocks to reach (minimum) self-sustaining stock levels for viable populations in B.C. where possible, and then reach maximum sustainable natural/historic stock levels. These two stock levels in the goal statement need to be defined specifically. The following are considerations for defining levels: A Strategy for Rebuilding Abalone Stocks in British Columbia, March,

22 historic location and abundance levels; current locations and abundance levels; potential abundance or carrying capacity; and, demographics of population (e.g., growth, mortality, recruitment rates). It should be noted that the minimum self-sustaining stock level is biologically determined, whereas the maximum attainable level that could be built above the minimum level is, in part, socially or politically determined. For this goal, it is also important to define the attributes of the meta-population. Considerations when defining meta-population include geographic distribution, source and sink populations and rates of exchange, and healthy meta-populations versus remnants. The three main restoration objectives are: Prioritize locations for stock restoration work: Criteria for selecting locations and options may include: - the degree to which areas can be easily monitored and where enforcement is likely to be strong, and - the probability of success in reaching the goal. Build local community support for restoration. Develop an agreed upon local goal (i.e. target stock level) and specific strategies or interventions to reach this target level: Local community stakeholders should be a part of setting these targets. What is perceived as a success in one location may be viewed as a failure in another. Also note that interventions may vary by location, according to such factors as resources available, population requirements and risk Restoration/Rebuilding Options Natural mechanisms may rebuild the population if monitoring and enforcement is increased and the poaching problem is removed. More costly interventions may then not be needed. However, if the poaching problem is addressed but rebuilding is not occurring on its own, there is a need to identify other problem areas or factors placing stress on populations. Based on these challenges, the following potential interventions may be considered: (a) Stock interventions: - larval seeding, - juvenile out-planting, - adult transplant, or, - manipulations of existing adults (e.g., aggregation of adults to increase spawning densities). Considerations when dealing with stock interventions are: - collect brood stock from the same area into which it is to be replanted; 12 A Strategy for Rebuilding Abalone Stocks in British Columbia, March, 1999

23 (b) (c) - develop ways of differentiating between wild and out-planted individuals and for tracking individuals, e.g., by tagging ; - maintain genetic diversity; - minimize the risk of disease (Possible approaches include: i. have permits from a federal/provincial transplant committee, ii. establish Canadian Shellfish Health Protection Regulations, iii. create a website for all infectious diseases as a reference data base.); - prevent poaching; - establish an ecological basis (e.g., appropriate habitat, predator-prey relationships, carrying capacity); - research may be needed to improve understanding of larval/juvenile behavior, density dependence, etc. (e.g., tank experiments ); and - it may be necessary to make difficult choices (e.g., some options such as juvenile out-planting cost more but may respond more rapidly to interventions adult manipulations may be least expensive but slowest to respond). The stock manipulation options above also need to be considered with respect to: distance from hatchery, area to be enhanced, cost, and time to recovery. Habitat Interventions: - restore habitat, - remove or exclude competing species, or, - establish marine protected areas (MPAs). Considerations when dealing with habitat interventions are: - How soon do we want action to occur? Our time frame may determine what kinds of interventions we choose ( e.g., if formal MPAs take a long time to establish it may be important to consider informal ones). - Poaching may have changed both abalone genetics and habitat. There may be a research need here. - We may have to choose between establishing refugia in a few selected areas versus being more widespread. Community Activities: These include neighborhood or coast watch programs (note that there are similar programs already being implemented for other species), and stewardship programs for community involvement Resources for Restoration The following are existing and potential human, financial, physical and other resources that could be used to support stock restoration work: A Strategy for Rebuilding Abalone Stocks in British Columbia, March,

24 First Nations existing fisheries programs, co-management programs with DFO, elder and community understanding of their environment, historical data, patrol boats and aircraft, divers, biologists, fisheries officers, tribal police; Provincial programs and agencies Fisheries Renewal BC, BC Science Council; Industry fishing associations (note that there is currently no Abalone Association), aquaculture, eco-tourism; Federal programs and agencies National Research Council (e.g., possible support for hatchery technology development), Natural Sciences and Engineering Research Council (NSERC) (funding for academic research students), DFO (expertise, processes, programs, data handling capabilities), Parks Canada, the Canadian Biotech Strategy (as a funding source), Community Futures Programs; International agencies e.g., World Bank, philanthropic organizations, UNESCO, International Abalone Association (a source of information, peer review of strategies, etc.); and Universities and colleges can tap NSERC funding, and can potentially form industry partnerships. Other resources available to rebuild stocks include the following: historical data on where abalone existed from fishery, First Nations, agencies (important for enforcement as well as enhancement); physical resources and expertise - DFO; shellfish hatchery capability (e.g., Island Scallops for hatcheries); existing legislation and policies; existing monitoring mechanisms; Internet sources; First Nations protocol agreements with DFO, memoranda of understanding between DFO and Parks Canada or B.C. Parks; and, public education system (i.e. schools). It is important to build on existing resources such as the Pacific Fisheries Resource Conservation Council. Its strengths are that it has key connections to ministers; it is still in the process of building its procedures so might be willing to consider work on abalone; it involves both federal and provincial levels; and it is an autonomous body Strategic Considerations General considerations to guide the stock restoration component of the rebuilding strategy include the following. The fishery should be kept closed during the rebuilding process. Specific interventions should be prioritized in terms of economic and biological feasibility. The vision for stock restoration should be a long-term one ( i.e., more than 10 years). Community buy-in is critical to success. 14 A Strategy for Rebuilding Abalone Stocks in British Columbia, March, 1999