Dr. Mark C. Holliday - MAFMC SSC, NMFS Office of Policy Dr. Sherry Larkin – SAFMC, GMFMC SSCs,

1. National SSC Workshop: Catch Shares & Commercial Fishing Communities Dr. Mark C. Holliday - MAFMC SSC, NMFS Office of Policy Dr. Sherry Larkin – SAFMC, GMFMC SSCs, Food & Resource Economics University of Florida

2. Session Goals & Objectives • The focus of this session’s discussion is how can SSCs encourage greater engagement and recognition of communities & community objectives in the fishery management policy process, and link them to application of catch share design tools for this particular outcome.

3. Session Context Social Scientists on the SSC have a unique perspective, and this is an opportunity to provide advice and counsel to the Fishery Management Councils on this topic. In January 2011 NMFS convened a workshop on fishing communities and the use of catch shares. The findings and recommendations from the proceedings are offered as a reference point for our discussion.

4. Session Process • Our process is to compare information from the workshop to sustainable fishing communities’ needs around the country, and identify policy/process/other gaps and impediments, and recommend to Council and NMFS leadership the steps to close these gaps.

5. Workshop Details • January 11-13, 2011 Washington DC • 25 participants: HQ and regional NMFS; Regional Council members/staff; NOAA general counsel; fishermen; community and fishery-based association experts • 9 Discussion Topics • Read ahead Briefing Papers/Trigger Qs./Small group facilitated discussions/Report-outs • 5 Context Presentations on Community Experiences

6. 9 Discussion Topics Topic 1: MSA: Communities in Fisheries Management Topic 2: MSA 303A Limited Access Privilege Programs & Communities Topic 3: Non-303A Community Pathways for Councils - CFAs, Sectors Topic 4: Sustainability Plans and RFA Plans Topic 5: Monitoring and Evaluating Community Objectives/Outcomes Topic 6: Communities Getting and Holding Quota: (Initial Allocation, Transferability, Accumulation Limits, Permit Banks, Fisheries Loan Fund, Catch Accounting) Topic 7: Facilitating Community Organization efforts Topic 8: Current FMP goals and objectives affecting communities; Threats and opportunities; Future vision relative to communities Topic 9: Transferring Knowledge – Future Communication and Engagement Strategies with communities

7. Five Community Experiences • Pt Clyde and New England Sectors • Cape Cod Fisheries Trust • Central California Groundfish Project • Kodiak, Alaska • Cortez, Florida

8. Summary Findings/Needs 1. Councils need to delimit regionally-specific eligibility criteria, define how these criteria relate to overarching management objectives so that groups may design FCs and/or RFAs that align with Council goals; 2. The function, advantage, and appropriate/intended use of FCs and RFAs need to be expressed more clearly to stakeholders and potential members; 3. Existing fishermen entities could provide the basis for future FCs and RFAs; however, it is unclear how/if these entities are better than non-Section 303A entities that currently exist;

9. Summary Findings/Needs 4. Sustainability plans should be comprehensive but they should also strive to reduce reporting of superfluous information; 5. To successfully develop FCs and RFAs, communities need financial and technical assistance from NOAA and the Councils and in some cases third-party expertise; 6. NOAA should develop an online clearinghouse of catch share information to hold and disseminate data, knowledge and case study building blocks to support decision-makers, community leaders, and the industry;

10. Summary Findings/Needs 7. There are a suite of regulatory “levers” that can be integrated into catch share program designs to achieve economic, social, and ecological outcomes; 8. Community organization efforts requires collaboration of agency and public-private cross-sector approaches providing understandable information, financial and technical assistance to off-set start-up costs, and a commitment to long-term communication, monitoring and follow-up with communities;

11. Summary Findings/Needs 9. Community-related issues need to be brought to and sought out by the Councils more directly by way of formal advisory committees or expanded consultation mechanisms in communities; 10. Benefits and impacts of catch share programs need to be made more accessible to the public via a consortium of governmental, non-governmental, and non-profit entities that have experience and long-term relationships working with local communities.

12. SSC Trigger Questions How can SSCs encourage greater engagement and recognition of communities/community objectives in the fishery management policy process? What are the best options for consideration of catch shares as a means to address sustainable community objectives? What are the impediments or barriers for consideration of catch shares as a means to address sustainable community objectives? What are the data monitoring and performance tracking requirements for implementation of catch share solutions to community objectives?

13. SSC Recommendations Enter your ideas here….

14. Backup Slides

15. Topic 1 Communities in Fisheries Management • Council framework in which communities can define themselves. Council is responsible for final decision, but self organizing is important, allows buy-in, and can be a very ‘personal’ decision for a community and individual fishermen. • Community resilience, sustained participation is a multiple generational concern. • Maintaining sustained participation - may change radically over time (and not look like the ‘historical’ fishery).

16. Topic 1 Communities in Fisheries Management • There is more flexibility in the MSA for defining communities than is utilized. • Establish management goals first • Align with MSA • Provide the flexibility • Need (1) outreach and communication about the flexibility allowed, and (2) new tools to help with analyses.

17. Topic 2 - Fishing Communities and Regional Fishery Assns. • Explicit Community provisions in MSA 303A(c) • Collective quota holding under LAPP • Require criteria developed by Council and approved by Secretary • Require Sustainability Plans (FCs) or RFA plans

18. Topic 2 LAPPs and Communities • Councils should first identify goals, then determine if FC/ RFA criteria help meet the goals. • Why consider RFA if other approaches are available that are less limiting? • Ask “What?” first, then the “how?” • Communities must be organized to participate • Existing associations and community structure • NS4 not a problem

19. Topic 3 Other Community Pathways for Councils • Interest in learning more about Pacific CFAs and New England sectors • Need outreach from NMFS on options • More flexibility than realized • Potential implications: less oversight and constraint; self-determined groups; cost recovery; path for initial allocation • More info about these new tools

20. Topic 4 Sustainability and RFA Plans • Accountability to public and community • How quota will be used, benefit the greater community • General standards for all plans, guidelines on customizing • These are strategic plans– require future vision • Include performance standards • Administrative burden - communities will need resources and expertise

21. Topic 5 Monitoring and Evaluation • Councils need to require data collection • Some data may or may not be available, have to look for it and compile • Data sources: census, economic quarterly info, CDI groups • Track changes, and also meaning behind those changes. Long term analysis

22. Topic 6 Getting and Holding Quota • Initial Allocation • Challenge for all catch share programs • Tied to goals, must include restrictions and duration to meet the goal • Set-asides for communities - • Depends on fishery conditions • Based on landings history or other criteria

23. Topic 6 Getting and Holding Quota • Transferability • Depends on management goals • Effect on other market participants • Access to quota • Low market experience • Consolidation • Mechanism to move quota into permit bank or allocation pool

24. Topic 6 Getting and Holding Quota • Accumulation Limits • Higher for FCs/RFAs • What are caps based on? • - Individuals • - Community goals • - Limited grandfather clauses • - How to deal with over-the-limit • - Divestiture • - Reverted back to pool upon transfer

25. Topic 6 Getting and Holding Quota • Permit Banks • Advantages: anchor quota, access for new entrants • Disadvantages: unused quota, effects on market. political • Council determines what entities could operate as permit bank

26. Topic 6 Getting and Holding Quota • Fisheries Loan Funds • Set-aside or some mechanism to generate funds for loan program • Community raise funds- economic development • Statutory authority for NMFS to provide loans to communities • Private loans and philanthropic program investments

27. Topic 6 Getting and Holding Quota • Catch Accounting • Difference between individual and group? • Jointly liable • Norms for self-enforcement

28. Topic 7 Facilitating Community Organization Efforts • Proactive Approach- outreach and education • Council, NMFS, NGO, community? • Support – funding, tools, data management • Start-up versus on-going support • Interaction with communities • Seek out partners and community leaders • Emphasis on Sea Grant extension agents • Provide building blocks, but consider regional differences

29. Topic 8 Current FMP Goals and Objectives…. • Few Community “Goals” in FMPs • WPFMC Ecosystem plans have community goals • Community Participation in Council process • Attend meetings • Community reps on Advisory Panels or on Council • Provide opportunities, but let communities organize • Rebuilding takes priority, but as stocks improve we can focus on community goals • No FMP goals does not indicate lack of concern

30. Topic 9 Transferring Knowledge: Future Communication and Engagement Strategies • Accessible tools for Councils and communities • Case studies of community organizations • Clarified guidance on 303A provisions • Organizational strategies and data management tools • Community solutions, not just catch shares • Broader community impacts of management • Tools, Outreach, Education must be tailored for the community (cultural, linguistic, etc)

31. Topic 9 Communication • Critical to reach out to communities, be proactive • Community extends beyond fishermen • Division of labor: Council/NMFS/others? • Sea Grant, states, NGOs, other to partner