Hawaiian Archipelago

271 Pages·2015·16.86 MB·English

by  Chris Hawkins

FISHERY ECOSYSTEM PLAN
for the
HAWAIIAN ARCHIPELAGO

Western Pacific Regional Fishery Management Council
1164 Bishop St., Suite 1400
Honolulu, HI 96813

PHONE: [phone]
FAX: [phone]

www.wpcouncil.org

Working Draft: 10/6/2015 12:18 PM
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FEP for the Hawaiian Archipelago Preface
PREFACE

In 2005, the Council recommended to establish and implement fishery ecosystem plans for
archipelagic, pelagic, and remote island areas in the Western Pacific Region. In order to
accomplish this directive, Council staff conducted a series of ecosystem-based fishery
management (EBFM) workshop between 2005 and 2007: Ecosystem Science (2005); Social
Science (2006); and Management Policy (2007). Previously, the Council managed fisheries in
these areas using the single-species management paradigm. Ecosystem-based fishery
management addresses a geographically-specified system of fishery-associated organisms
(including humans), and the environment and the processes that control its dynamics. It includes
noncommercial and commercial fisheries, and recognizes the physical, biological, economic and
social interactions among the affected components of the ecosystem. Perhaps most importantly,
EBFM seeks to manage for a spectrum of goals society has for fishery ecosystems – some of
which may be in competition.

The Council’s first fishery ecosystem plans were approved by the Secretary of Commerce in
September 2009. However, ecosystem-based fishery management thinking has an extended
history in our region. For example, the Council’s Executive Director, Kitty Simonds, was an
active participant in one of the National Oceanic and Atmospheric Administration’s (NOAA)
first ecosystem management workshops, in 1986. In 2001, the Council took final action to
recommend the first fishery ecosystem management plan in the nation. The Coral Reef
Ecosystem Fishery Management Plan encompassed Council-associated coral reef fishery
ecosystems in the U.S. Pacific Islands. Among other things, the plan established a process to
assess and control ecosystem effects of bottomfish, precious coral, and crustacean fisheries
operating federal waters under then-existing fishery management.

The Hawaiian Archipelago FEP is the framework under which the Council will manage place-
based fishery ecosystem resources, including the integration of important ecosystem elements
important to decision-making. These elements include social, cultural, and economic dimensions,
protected species, habitat considerations, climate change effects, and the implications to fisheries
from various spatial uses of the marine environment. Successful ecosystem-based fisheries
management requires an increased understanding of a range of social and scientific issues,
including the societal goals society appropriate management objectives, biological and trophic
relationships, ecosystem indicators and models, and the ecological effects of nonfishing activities
on the marine environment. Future fishery management actions are anticipated to utilize this
information as it becomes available, and adaptive management will be used to further advance
the implementation of ecosystem science and principles. In this regard, the success of the EBFM
approach relies heavily on the data collection and synthesis process established by the pelagic
and archipelago annual fishery ecosystem reports (SAFE Reports). In 2015, the Council, in
partnership with the National Marine Fisheries (NMFS) Pacific Islands Fishery Science Center,
local fishery resource management agencies, and the NMFS Pacific Islands Regional Office
revised and expanded the contents of these reports to include the range of ecosystem elements
described above.
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FEP for the Hawaiian Archipelago Preface

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FEP for the Hawaiian Archipelago Executive Summary
EXECUTIVE SUMMARY
The Magnuson-Stevens Fishery Conservation and Management Act (MSA) is the primary
domestic legislation governing management of the nation’s marine fisheries. The United States
Congress has amended and reauthorized the MSA several times since 1976. The 1996
reauthorization included, among other things, a new emphasis on the precautionary approach. In
2006, an annual catch limit requirement was written in. The MSA contains ten national
standards, with which all fishery management plans and plan amendments must conform. The
MSA also requires U.S. fisheries management be consistent with the requirements of other
regulations including the National Environmental Policy Act, Marine Mammal Protection Act,
the Endangered Species Act, the Migratory Bird Treaty Act, and several other Federal laws and
Executive Orders.
Under the Magnuson-Stevens Act, the Western Pacific Regional Fishery Management Council
(Council) is authorized to prepare and submit to the Secretary of Commerce for approval,
disapproval or partial approval, a Fishery Management Plan (FMP) and any necessary
amendments, for fisheries that are under its authority and that require conservation and
management. The Council transitioned to Fishery Ecosystem Plans (FEPs) from FMPs in 2009.
The Council conducts public hearings so that all interested persons may have opportunities to
participate in the development of FEPs and amendments.
This Fishery Ecosystem Plan (FEP) governs federal fisheries of the Hawaiian archipelago. The
management area is the United States (U.S.) Exclusive Economic Zone (EEZ) of the archipelago.
The Plan covers bottomfish, coral reef fish, crustacean, and precious coral stocks and fisheries.
The FEP was implemented on September 24, 2009. It replaced a set of species-based FMPs that
covered the Western Pacific Region. This version of the FEP was implemented on ____. It
strengthens the ecosystem-based fishery management approach, provides the public with
additional information regarding the management process, conforms to new information
requirements, and is a framework for a clearer understanding of fishery and conservation and
management measures promulgated by the FEP and subsequent amendments to it.
FEP for the Hawaiian Archipelago Executive Summary

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FEP for the Hawaiian Archipelago Table of Contents
TABLE OF CONTENTS
PREFACE ........................................................................................................................................ i
EXECUTIVE SUMMARY ..............................................................................................................
1 INTRODUCTION .................................................................................................................. 1
1.1 Mission ............................................................................................................................ 1
1.2 Authorities and Primary Management and Process Drivers ........................................... 2
1.2.1 MSA ........................................................................... Error! Bookmark not defined.
1.2.1.1 National Standards .............................................................................................. 5
1.2.1.2 Essential Fish Habitat ......................................................................................... 5
1.2.2 NMFS Guidance ......................................................................................................... 7
1.2.3 National Environmental Policy Act ............................................................................ 7
1.2.4 Endangered Species Act ............................................................................................. 8
1.2.5 Marine Mammal Protection Act ................................................................................. 9
1.3 Hawaiian Archipelago .................................................................................................. 10
1.3.1 Geography ................................................................................................................. 10
1.3.2 People ........................................................................................................................ 10
1.3.2.1 Indigenous Culture ............................................................................................ 10
1.3.2.2 Current Demographics ...................................................................................... 11
1.3.2.3 Fishing Communities ........................................................................................ 12
2 MANAGEMENT POLICY, GOALS, AND OBJECTIVES .................................................. 0
2.1 Council Management Policy ........................................................................................... 0
2.2 Hawaii FEP Purpose and Need ....................................................................................... 0
2.3 Hawaiian Archipelago Fishery Ecosystem Plan Goals ................................................... 0
2.4 Hawaii FEP Objectives ................................................................................................... 1
3 MANAGEMENT REGIME AND FISHERY INFORMATION ........................................... 0
3.1 Main Hawaiian Islands Fisheries .................................................................................... 0
3.1.1 Bottomfish and Seamount Groundfish Fishery........................................................... 0
3.1.1.1 Description (commercial, charter, recreational) ................................................. 0
3.1.1.2 Type and Quantity of Fishing Gear .................................................................... 1
3.1.1.3 Catch in Number or Weight ................................................................................ 2
3.1.1.4 Economics ........................................................................................................... 2
3.1.1.5 Present and Probably Future Condition of the Fishery ....................................... 2
3.1.1.6 Yield .................................................................................................................... 3
3.1.1.6.1 MSY .............................................................................................................. 3
3.1.1.6.2 OY ................................................................................................................. 3
3.1.1.6.3 Extent to Which Fishing Vessels will Harvest OY ....................................... 3
3.1.1.6.4 Extent to Which U.S. Fish Processors will Process OY ............................... 3
3.1.1.7 MSA Conservation and Management Measures ................................................. 3
3.1.1.7.1 Management Areas and Sub-areas ................................................................ 4
3.1.1.7.2 Permit and Reporting Requirements ............................................................. 4
3.1.1.7.3 Gear Restrictions and Prohibitions ................................................................ 5
3.1.1.7.4 At-sea Observer Coverage ............................................................................ 5
3.1.1.7.5 Framework Procedures for Regulatory Adjustments .................................... 5
FEP for the Hawaiian Archipelago Table of Contents
3.1.1.7.6 Bycatch Measures ......................................................................................... 6
3.1.1.7.7 Annual Catch Limit ....................................................................................... 6
3.1.1.7.8 Criteria for Determining Overfishing ............................................................ 7
3.1.1.8 Regulations implementing International Recommendations and other
Applicable Laws ................................................................................................................. 8
3.1.1.9 Bycatch ............................................................................................................... 8
3.1.1.9.1 Amount .......................................................................................................... 8
3.1.1.9.2 Type ............................................................................................................... 8
3.1.1.9.3 Standardized Reporting Methodology .......................................................... 9
3.1.1.10 Identification and Description of EFH and HAPC ......................................... 9
3.1.1.10.1 Description and Identification of EFH ...................................................... 10
3.1.1.10.2 Identification of Habitat Areas of Particular Concern .............................. 10
3.1.1.11 Seamount Groundfish Essential Fish Habitat ............................................... 11
3.1.1.11.1 Description and Identification of EFH ...................................................... 11
3.1.1.11.2 Identification of Habitat Areas of Particular Concern .............................. 11
3.1.2 Coral Reef Fishery .................................................................................................... 11
3.1.2.1 Description (commercial, charter, recreational) ............................................... 11
3.1.2.2 Type and Quantity of Fishing Gear .................................................................. 12
3.1.2.3 Catch in Numbers or Weight ............................................................................ 12
3.1.2.4 Fishing Areas .................................................................................................... 12
3.1.2.5 Time of Fishing ................................................................................................. 12
3.1.2.6 Number of Hauls ............................................................................................... 12
3.1.2.7 Economics ......................................................................................................... 12
3.1.2.8 Present and Probable Future Condition of the Fishery ..................................... 12
3.1.2.9 Yield .................................................................................................................. 13
3.1.2.9.1 Maximium Sustainable Yield ...................................................................... 13
3.1.2.9.2 Optimum Yield ............................................................................................ 13
3.1.2.9.3 Extent to Which Fishing Vessels will Harvest OY ..................................... 13
3.1.2.9.4 Extent to Which U.S. Fish Processors will Process OY ............................. 13
3.1.2.10 MSA Conservation and Management Measures ........................................... 13
3.1.2.10.1 Management Unit Species ......................................................................... 13
3.1.2.10.2 Permit and Reporting Requirements ......................................................... 21
3.1.2.10.3 Gear Restrictions and Prohibitions ............................................................ 21
3.1.2.10.4 Framework Procedures for Regulatory Adjustments ................................ 21
3.1.2.10.5 Bycatch Measures ..................................................................................... 22
3.1.2.10.6 Annual Catch Limit ................................................................................... 22
3.1.2.10.7 Criteria for Determining Overfishing ........................................................ 23
3.1.2.11 Regulations Implementing International Recommendations and other
Applicable Laws ............................................................................................................... 24
3.1.2.12 Bycatch ......................................................................................................... 24
3.1.2.13 Identification and Description of EFH and HAPC ....................................... 24
3.1.2.13.1 Description and Identification of EFH for CHCRT .................................. 24
3.1.2.13.2 Description and Identification of EFH for PHCRT .................................. 25
3.1.2.13.3 Identification of Habitat Areas of Particular Concern .............................. 28
3.1.3 Crustacean Fishery .................................................................................................... 30
3.1.3.1 Description (commercial, charter, recreational) ............................................... 30
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FEP for the Hawaiian Archipelago Table of Contents
3.1.3.2 Type and Quantity of Fishing Gear .................................................................. 31
3.1.3.3 Catch in Numbers or Weight ............................................................................ 31
3.1.3.4 Fishing Areas .................................................................................................... 32
3.1.3.5 Time of Fishing ................................................................................................. 32
3.1.3.6 Number of Hauls ............................................................................................... 33
3.1.3.7 Economics ......................................................................................................... 33
3.1.3.8 Present and Probable Future Condition of the Fishery ..................................... 33
3.1.3.9 Yield .................................................................................................................. 33
3.1.3.9.1 Maximum Sustainable Yield ....................................................................... 33
3.1.3.9.2 Optimum Yield ............................................................................................ 33
3.1.3.9.3 Extent to Which Fishing Vessels will Harvest and Process OY ................. 33
3.1.3.10 MSA Conservation and Management Measures ........................................... 34
3.1.3.10.1 Management Unit Species ......................................................................... 34
3.1.3.10.2 Management Areas .................................................................................... 34
3.1.3.10.3 Permit and Reporting Requirements ......................................................... 34
3.1.3.10.4 Gear Restrictions and Prohibitions ............................................................ 35
3.1.3.10.5 At-sea Observer Coverage ........................................................................ 36
3.1.3.10.6 Framework Procedures for Regulatory Adjustments ................................ 36
3.1.3.10.7 Bycatch Measures ..................................................................................... 37
3.1.3.10.8 Annual Catch Limit ................................................................................... 37
3.1.3.10.9 Limit .......................................................................................................... 37
3.1.3.10.10 Criteria for Determining Overfishing ...................................................... 37
3.1.3.11 Regulations Implementing International Recommendations and other
Applicable Laws ............................................................................................................... 40
3.1.3.12 Bycatch ......................................................................................................... 40
3.1.3.12.1 Amount ...................................................................................................... 40
3.1.3.12.2 Type ........................................................................................................... 40
3.1.3.12.3 Standardized Reporting Methodology ...................................................... 41
3.1.3.13 Identification and Description of EFH and HAPC ....................................... 41
3.1.3.13.1 Description and Identification of EFH for Spiny and Slipper Lobster and
Kona Crab 42
3.1.3.13.2 Identification of Habitat Areas of Particular Concern .............................. 42
3.1.3.14 Deepwater Shrimp Essential Fish Habitat .................................................... 43
3.1.3.14.1 Description and Identification of EFH for Deepwater Shrimp ................. 43
3.1.3.14.2 Identification of Habitat Areas of Particular Concern .............................. 44
3.1.4 Precious Corals Fishery ............................................................................................ 44
3.1.4.1 Description (commercial, charter, recreational) ............................................... 44
3.1.4.2 Type and Quantity of Fishing Gear .................................................................. 44
3.1.4.3 Harvest in Numbers or Weight ......................................................................... 45
3.1.4.4 Fishing Areas .................................................................................................... 45
3.1.4.5 Time of Fishing ................................................................................................. 45
3.1.4.6 Number of Hauls ............................................................................................... 45
3.1.4.7 Economics ......................................................................................................... 45
3.1.4.8 Present and Probable Future Condition of the Fishery ..................................... 45
3.1.4.9 Yield .................................................................................................................. 45
3.1.4.9.1 Maximum Sustainable Yield ....................................................................... 45
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FEP for the Hawaiian Archipelago Table of Contents
3.1.4.9.2 Optimimum Yield ....................................................................................... 47
3.1.4.9.3 Extent to Which Fishing Vessels will Harvest OY ..................................... 48
3.1.4.9.4 Extent to Which U.S. Fish Processors will Process OY ............................. 48
3.1.4.10 MSA Conservation and Management Measures ........................................... 48
3.1.4.10.1 Management Unit Species ......................................................................... 48
3.1.4.10.2 Management Areas .................................................................................... 49
3.1.4.10.3 Permit and Reporting Requirements ......................................................... 49
3.1.4.10.4 Gear Restrictions and Prohibitions ............................................................ 49
3.1.4.10.5 Framework Procedures for Regulatory Adjustments ................................ 50
3.1.4.10.6 Bycatch Measures ..................................................................................... 51
3.1.4.10.7 Annual Catch Limit ................................................................................... 51
3.1.4.10.8 Criteria for Determining Overfishing ........................................................ 51
3.1.4.11 Regulations Implementing International Recommendations and other
Applicable Laws ............................................................................................................... 53
3.1.4.12 Bycatch ......................................................................................................... 54
3.1.4.12.1 Standardized Reporting Methodology ...................................................... 54
3.1.4.13 Precious Corals Essential Fish Habitat ......................................................... 54
3.1.4.13.1 Description and Identification of EFH ...................................................... 56
3.1.4.13.2 Identification of Habitat Areas of Particular Concern .............................. 56
3.2 Northwestern Hawaiian Islands Fisheries ..................................................................... 56
3.2.1 NWHI Bottomfish Fishery ........................................................................................ 56
3.2.2 NWHI Coral Reef Fishery ........................................................................................ 58
3.2.3 NWHI Crustaceans Fishery ...................................................................................... 58
3.2.4 NWHI Precious Coral Fishery .................................................................................. 59
3.3 Small Boat Pelagic Fisheries ........................................................................................ 59
3.4 Other Information Necessary for FEP Implementation ................................................ 60
3.4.1 Sociocultural Data ..................................................................................................... 60
3.4.2 Protected Species Information .................................................................................. 61
3.4.3 Climate Change and Marine Planning ...................................................................... 62
3.4.3.1 Climate Change ................................................................................................. 62
3.4.3.2 Marine Planning ................................................................................................ 64
3.4.4 Aquaculture ............................................................................................................... 64
3.4.5 Fishing Rights of Indigenous People ........................................................................ 65
3.4.5.1 Western Pacific Community Development Program ........................................ 66
3.4.5.2 Western Pacific Community Demonstration Project Program ......................... 67
4 MANAGEMENT PROCESS ............................................................................................... 68
4.1 Council Process ............................................................................................................. 68
4.1.1 Overview of Council Process.................................................................................... 68
4.1.1.1 Development and Approval Process for Management Actions ........................ 68
4.1.1.1.1 Specific Elements and their Relationship to Decision-making ................... 70
4.1.1.1.2 Advisory Panels........................................................................................... 72
4.1.1.1.3 Plan Teams .................................................................................................. 72
4.1.1.1.4 Science and Statistical Committee .............................................................. 72
4.1.1.1.5 Fishing Industry Advisory Committee ........................................................ 73
4.1.1.1.6 REAC and other Council Committees ........................................................ 73
4.1.1.1.7 Ad-hoc Committees and Working Groups .................................................. 74
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