As we get closer to the Atlantic States Marine Fisheries
Commission’s Striped Bass Management Board meeting on October 29, anglers are
understandably anxious about what the Management Board is going to do.
Will it act responsibly and impose a harvest reduction of at
least 25% for the 2015 season? Or will
it cave in to the demands of some industry voices, and favor short-term
economic interests over the public interest in a healthy stock?
Along with that worry, there’s one more that has come up
throughout the debate. And it’s not
going to go away.
Even if the Management Board does the right thing, will
states try to game the system and get a leg up on their neighbors by invoking
the concept of “conservation equivalency?”
Conservation equivalency is one of those concepts that’s
unique to ASMFC.
You don’t generally see it in the federal system. The
Magnuson-Stevens Fishery Conservation and Management Act’s National
Standard Three requires that
“To the extent practicable, an individual stock of fish
shall be managed as a unit throughout its range, and interrelated stocks of
fish shall be managed as a unit or in close coordination.”
That’s usually interpreted to mean that, in federal waters,
regulations will be the same throughout the stock’s range.
There are a few exceptions.
The South Atlantic Fishery
Management Council’s Fishery Management Plan
for the Dolphin and Wahoo Fishery of the Atlantic does not impose a
size limit for dolphin on most states’ anglers.
However, in order to avoid conflict with regulations in Florida, Georgia
and South Carolina, anglers landing dolphin in those states must abide by the
relevant state’s minimum size limit.
And in the Gulf of Mexico’s troubled red snapper fishery,
the Gulf of Mexico Fishery Management Council tried to impose seasons of
different lengths on anglers from different Gulf states, in order to compensate
for disparate size limits, bag limits and seasons adopted in state waters. However, that effort was frustrated by a
federal court, which found that it violated National Standard Four of the
Magnuson Act, because it discriminated between the residents of the affected
states.
However, at ASMFC, the idea of states imposing different but
supposedly “equivalent” regulations has a long, if somewhat checkered, history.
ASMFC’s Charter
specifically permits it, saying that if a management board chooses to permit
conservation equivalency to apply to any management plan, such management plan
must contain
“procedures under which the states may implement and enforce
alternate management measures that achieve conservation equivalency.”
Over the years, that provision has been applied pretty
liberally.
The most controversial application of conservation
equivalency was undoubtedly in the summer flounder fishery, where each state
was given its own share of the recreational allocation and required to come up
with some combination of size limit, bag limit and season that—again in
theory—kept its anglers from exceeding their quota.
The system didn’t work.
Neighboring states had wildly different regulations. Disgust and anger flared when anglers fishing
on one side of a state border were forced to release fluke that were undersized
for them, but were a couple inches over
the limit for anglers in another boat, who were fishing a just a few yards
away, but on the other side of the border.
Summer flounder management board meetings became less an
exercise in conserving and managing the stock and more an effort by each
state’s commissioners to protect their share of the fishery and, if possible, grow
that share at the expense of their neighbors.
And the whole thing was pointless, because they were all
fishing on the same stock of fish, that swam where they chose without regard
for state borders.
That problem was fixed, at least temporarily, by the
adoption of regional management in 2014, but there is no guarantee that it
won’t rear its head up again next year.
In other fisheries, conservation equivalency didn’t arouse
such passions, but it still didn’t always make sense.
In the scup fishery, for example, the four
states that share most of the harvest, New York, Connecticut, Rhode Island and
Massachusetts adopt a similar set of regulations. That is a good thing, because they’re fishing
on the same stock of scup, and managing on a regional basis helps smooth out
the regulatory swings that seem endemic to state-by-state management.
However, the states from New Jersey south fish by different
rules, and that’s where the problems set in.
In New
York, for most of the season, anglers may keep 30 scup at least 10 inches long,
and the season runs from May 1 through the end of the year. However, in New Jersey,
anglers may keep as many as 50 scup no less than 9 inches long, and the season
runs from January 1 through February 28, and from July 1 through December 31.
Boats running south out of Long Island ports, or southeast
out of Staten Island or Sheepshead Bay, often fish on the same wrecks as vessels
that run east out of New Jersey. Two
boats might be anchored within easy sinker-throwing distance of one another, but
the anglers on the New York boat may take only 30 10-inch fish compared to the
Jersey boats’ 50 fish at 9 inches. In
January and February, the Jersey boats may still load up while the New York
boats can’t retain any scup at all; in May and June, that situation is reversed
and the Jersey boats must go empty while the New York boats score.
From a conservation and management perspective, that’s
pretty hard to defend.
So some folks are concerned that we’re going to have a
plethora of regulations governing the migratory population of Atlantic striped
bass.
To some extent, we already do.
Maine wanted to kill immature fish, and accepted a 1-fish
bag limit in order to make its 20 to 26-inch or over 40-inch slot “equivalent”
to two at 28 inches. New York didn’t
want its commercial fishermen to put big, PCB-laden fish from the Hudson River
into the stream of commerce, and traded a 24 to 36-inch slot for a reduced
commercial quota. And Connecticut and
New Jersey, which are “gamefish” states with no legal commercial harvest,
translated unused commercial quota into a bigger recreational kill.
But today, with regulations as restrictive as one fish at 32
inches being discussed, I’m hearing a lot of concerned talk about states
turning to conservation equivalency to frustrate the spirit, if not the letter,
of any harvest reductions.
The concern comes from two camps. There are the conservation-minded anglers who
don’t want to see the spawning stock threatened by “equivalent” regulations
that raise the bag limit above a single fish.
Then there are their polar opposites, the for-hire boats who support a
big kill, and fear that “equivalent” options might lure meat-hungry customers
away.
The concerns are not groundless.
Right now, we’re looking at a striped bass population that features big gaps between dominant—or even average—year classes. The 2008 and 2009 year classes, which will
provide the just-legal fish in 2015, were below average in size; the last
dominant year class was 2003, and those fish will be about 40 inches long next
season.
It’s not impossible that one or more states will decide that
they can achieve conservation equivalency by adopting a 2-fish bag limit, for
everyone or perhaps just for their for-hire boats, and a size limit somewhat
higher than the one set by the Management Board.
If the Management Board adopted a 1-fish bag and a 28-inch
minimum size, two fish at 33 inches would probably be deemed equivalent.
That sounds like a big step up, but since there has only
been one average year class (2007) between 2005 and 2011, it probably wouldn’t
have much effect on harvest, since the 2005s would be about 36 inches
long. On paper, two at 33 inches might
look “equivalent” to one at 28, but on the water, taking account of the largely
missing year classes, it would probably result in a lot more dead fish.
That would be a bad thing, and would largely frustrate
efforts to reduce fishing mortality, which already have a 50% probability of
failure.
In New Jersey, giving the unused commercial harvest
currently allocated to its “bonus fish” program to the for-hire landings
could give its boats a second fish and competitive advantage over boats in
neighboring states. Coupled with an
increased size limit, it might be enough to get a second fish for everyone.
Conservation equivalency would probably be less of a problem
if the Management Board opts for a 32-inch minimum size, because the size limit
associated with a 2-fish bag could become prohibitively large.
Unfortunately, there’s probably little that we can do about
the conservation equivalency issue.
In theory, the Management Board could decide that
conservation equivalency won’t apply to striped bass. But you’ll probably see your house get hit by
a meteor before you see conservation equivalency banned. The ASMFC commissioners are just too used to
the concept, have all used it when it served their purposes, and would be
reluctant to see their discretion to use it taken away.
So the best we can probably do is to admit that we live in
an imperfect world, and try to convince our state fisheries managers that the
best way to rebuild the striped bass is to manage it under one set of uniform
regulations throughout its range, and not permit state-by-state exceptions to
undermine the management process.
It’s not a perfect answer, but it’s the best one that we
have.
Because conservation equivalency, as flawed as it may be,
isn’t going away any time soon.
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