“Trust, but verify.”
It was one of the iconic phrases of the waning Cold War,
uttered by President Ronald Reagan as he negotiated an arms control deal with
the Soviet Union.
The phrase wasn’t actually coined by Reagan; it was an old
Russian saying that the President used against the Soviets when it served his
needs, but it’s still good advice.
It’s something that’s important to remember, because more
and more, we’re seeing states and various industry groups trying to augment, or
even replace, the National Marine Fisheries Service’s Marine Recreational
Information Program with self-reporting programs of various sorts that rely on
anglers and for-hire operators to do the right thing every time they go out.
The effort seems to be particularly popular in the case of
fisheries that are subject to strict federal regulations that require short
fishing seasons, small bag limits or other similar, unpopular measures.
The federal-waters red snapper fishery in the Gulf of Mexico
is arguably the most heavily-restricted recreational fishery on any of
America’s coasts. Thus, it is hardly
surprising that, last year, the
State of Alabama initiated a mandatory self-reporting program intended
provide better (from a snapper fisherman’s standpoint, if not necessarily from
a biologist’s, that translates to “smaller”) estimates of recreational red
snapper landings.
Alabama states that it initiated the program because
“The credibility of the current federal surveys used to
estimate recreational red snapper harvests among private and charter anglers
has been under ever increasing scrutiny…recent changes to the federal law that
governs how red snapper are managed have led to the imposition of stricter
regulations each year with slim hopes for improvement. A timely and accurate method of counting fish
such as the mandatory reporting program could improve the predicament that we
face in this fishery.”
In other words, the program was put in place with the hopes
that it would produce lower harvest estimates than the method used by the feds.
And in its first year, that’s exactly what happened.
Last June, when the federal red snapper season was open,
NMFS estimated that Alabama anglers landed about 1,041,000 pounds of such fish,
while the Alabama survey estimated that harvest to be a mere 418,000 pounds.
The question, of course, is “Which number is right?”
The federal MRIP estimates were derived from a program intended to improve upon the admittedly flawed Marine Recreational Fishing
Statistical Survey; however, MRIP remains a work in progress that is still
transitioning from the MRFSS format into its final form.
It is based on a rigorously analyzed
statistical format, and consists of both physical surveys of angler catch and
telephone and/or mail surveys used to estimate angler effort.
To implement the Alabama survey,
“Representatives from recreational vessels with red snapper
on board are required to report red snapper prior to landing fish in Alabama.”
They may make such reports through
“…smartphone app for IOS and Android devices found under the
Official Outdoor Alabama App…at respective app stores, online…, or on paper
forms found at select coastal public boat launches...”
It’s not clear how a vessel is supposed to report red
snapper “prior to landing fish in Alabama” through the use of paper
forms (perhaps fold them into airplanes and toss them toward shore?), or how
many anglers without the required app take the trouble to get such paper forms
if they don’t happen to return to one of the “select coastal public
boat launches.”
With a system like that, it might be that a few red snapper
fall through the cracks and aren’t counted, either because there isn’t a paper
form close at hand, or because anglers, hungry and tired at the end of a long
day offshore, just don’t get around to reporting, electronically or otherwise,
despite the new requirements.
After all, NMFS requires all bluefin tuna caught by anglers
to be reported, too, but when I spoke with one of the NMFS staffers responsible
for managing bluefin at NMFS' Recreational Fishing Summit held down in Alexandria
last April, he lamented that anglers actually reported only about one out of
every five bluefin caught.
If Alabama snapper anglers are no more conscientious than
their bluefin-catching counterparts elsewhere on the coast, it’s not surprising
that the state survey figures come in a little bit low…
But recreational underreporting isn’t just a tuna or red
snapper problem.
Here in New York, and throughout the northeast, party and
charter boats are supposed to fill out Vessel Trip Reports setting forth all of
their landings. New York may have the
strictest requirements, using a VTR that is essentially identical to the
federal form.
Yet when we look at striped bass, we seem to find problems.
NMFS estimates that anglers fishing from for-hire boats in
the State of New York landed 234,650 striped bass in 2014. At the same time, the New York State
Department of Environmental Conservation reports that Vessel Trip Reports
filled out by the state’s party and charter boats say that just 12,309 striped
bass—a mere five percent of the landings estimated by NMFS—were landed by
their customers in that year.
Comparable numbers for last year were similar; NMFS said
that the for-hires landed 125,558 fish, while the for-hires themselves claimed
just 6,477—again, just 5% of the NMFS number.
It’s impossible to say for certain which number is right, or
even which is closer to the truth. But
just think about this:
Last July, Montauk experienced a spectacular run of big
striped bass. During that run,
passengers on Montauk party and charter boats had no problem limiting out with bass weighing from 20 to more than 50 pounds.
If just three party boats, carrying only 30
passengers each and making just one trip each day, limited out for a week, they
would have landed 1,260 stripers—landing, in just one week, nearly one-fifth of all striped bass reported on all
vessel trip reports filed by all of
the state’s party and charter boats for the entire
year.
Given that the run lasted for much more than one
week, and that the 1,260-bass estimate was for only three party boats, didn’t
include any fish caught by Montauk’s large and active charter boat fleet, and didn’t
include striped bass caught by for-hire vessels running out of any other New
York port at any other time of the year—including South Shore ports which, from
Staten Island to Shinnecock, also enjoyed an excellent spring run of big bass
feeding on menhaden—the notion that New York’s for-hires killed fewer than
6,500 striped bass all season just doesn’t seem credible.
That’s why VTR data, and any other self-reported
information, should always be viewed with a jaundiced eye.
Many captains just don’t feel that it’s in their interests
to diligently report every fish killed on their boat.
Consider the infamous case of a
New Jersey party boat that came into port a few years ago with 819 illegal
(out-of-season) black sea bass on board.
When a local paper asked the captain whether he knew that the fish were
there, he said that he knew that a few were being kept, but
“I didn’t think it was that many. And I’m not getting paid by the state of New
Jersey to take fish out of people’s buckets.”
So what do you think his Vessel Trip Report would have included? Perhaps
5% of the fish that were actually
killed?
And yet, in their thankfully-defeated effort to open January
and February, when NMFS data is not collected in the northeast, to black sea
bass fishing, the party boats argued that a lack of harvest data should not
hinder the opening, because NMFS could
rely on the data reported in their VTRs.
The for-hire fleet loves to question NMFS’ data, which
everyone has to admit falls short of perfection. However, the accuracy of the for-hires’ data,
provided on VTRs and elsewhere, is also open to question.
At least the NMFS data, with all of its flaws, is collected
by objective surveyors, with no interest in how it is used; there will always
be a temptation for anglers and for-hire captains to “accidently” misreport
landings in an attempt to engineer a desired result.
Which means that managers should always be leery of
accepting electronic catch reports and other data provided by for-hires and
anglers, unless there is a protocol in place to objectively ground-truth that
data and assure that no creative accounting appears.
For whether we’re talking about nuclear fission or party
boat fishing, “Trust, but verify” remains good advice.
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