8. As introduction to Agenda Item 5, presentations were made on the Report of the Expert Consultation on Interactions between Sea Turtles and Fisheries within an Ecosystem Context (TC:STCF/2004/2) by Mr Milani Chaloupka, and Sea Turtle Conservation Concerns and Fisheries Management Challenges and Options (TC:STCF/2004/3) by Mr Jorge Csirke.
9. The Report of the Expert Consultation on Interactions between Sea Turtles and Fisheries within an Ecosystem Context (TC:STCF/2004/2) outlined the major findings of the Expert Consultation convened in Rome (9-12 March 2004). These included the: (i) identification of the major at-risk sea turtle species and the high risk marine areas for sea turtle-fisheries interactions; (ii) identification of mitigation measures to reduce mortality including incentives; (iii) recognition of the socio-economic considerations for such measures; (iv) identification of the need for better information on sea turtle stocks and fisheries-related mortality, and (v) identification of a need for FAO to promote guidelines to help reduce sea turtle mortality.
10. The Sea Turtle Conservation Concerns and Fisheries Management Challenges and Options (TC:STCF/2004/3) outlined the major sea turtle conservation and management concerns and fisheries management challenges. The report included: (i) the background of FAO’s role in responsible fisheries and sea turtles, in particular; (ii) identification of sea turtle stocks at risk and areas of greatest threat; (iii) modification of gear and fishing practices; (iv) legal considerations; (v) socio-economic cost to developing countries, and (vi) a need to develop guidelines to assist FAO implement the Code of Conduct for Responsible Fisheries.
11. In the discussions that followed the presentations many delegations expressed their gratitude to the FAO Secretariat for providing such comprehensive background documents. Some delegations however, noted information gaps in the two documents and specific reference was made to sea turtle-fisheries interactions in West African and southwestern Atlantic waters and also for the Atlantic loggerhead and leatherback stocks.
12. Some concerns were expressed about the potential impacts of some fisheries on sea turtle populations, and acknowledged the decline of some sea turtle stocks. Several delegations also stressed the importance of considering the entire sea turtle life-cycle and the potential impacts of other human activities as well as fisheries on long-term sea turtle viability.
13. The development of guidelines to help reduce sea turtle mortality in fishing operations was discussed and suggestions of the important components to be considered included:
· assessment of the causes of sea turtle mortality;
· protecting both nesting and foraging ground habitats;
· improving sea turtle stock assessments;
· improving existing knowledge of sea turtle abundance and fishery interactions;
· modification to gear and fishing practices;
· improving public education and awareness;
· consideration of socio-economic factors;
· review of the role of regional fishery management bodies (RFBs);
· building capacity to assist developing countries;
· consideration of other aspects of sea turtle conservation and management.
14. It was also pointed out that there was considerable variability among fisheries and the guidelines would need to recognize these differences. Some delegations from developing countries expressed a concern that such guidelines should not be used as a barrier to trade, as was the case with the shrimp embargo.
15. It was noted that the FAO forum provided an important opportunity for a wide range of fisheries management agencies to discuss these sea turtle-fisheries issues. Although this was a unique opportunity to improve our knowledge of the area and develop high-level policy, the importance of involving the fishers and their communities themselves in finding and implementing solutions was stressed.
16. A number of the major hazards or threats affecting sea turtle viability was noted during the Consultation. These included:
· egg and turtle harvesting;
· turtle poaching or illegal hunting;
· nesting habitat loss;
· foraging habitat loss;
· exposure to coastal gillnet, trawl, setnet and trap fisheries;
· exposure to pelagic longline fisheries;
· injuries caused by boat propellers;
· tourism impacts related to excess lighting on nesting beaches and noise;
· ingestion of plastic.
17. Serious attempts are being made to better understand the relative impact of these different threats using such techniques as onboard observer programmes but it was generally agreed that there is only limited information available on fisheries-related sea turtle mortality. The need for better information and of improved exchange of information on technologies to help reduce sea turtle mortality were highlighted.
18. While many States have adopted regional and/or international agreements and arrangements, as well as national conservation initiatives to reduce these threats, it was nonetheless believed that more effective and practical measures were still needed. Some delegates explained that such measures might include the action plans that are being developed.
19. The issue on the current status of sea turtle conservation and management in developing countries received special attention. Many delegations highlighted the need for both financial and technical support for developing countries to better manage and conserve sea turtle stocks within their region.
20. The importance of the livelihoods of the small-scale fishers needs to be taken into account. Several delegations reported on their attempts to raise turtles in hatcheries and release them to restore turtle stocks and highlighted the need to better understand the long-term survival of these hatchery-reared sea turtles.
21. The Consultation pointed out that a range of different management tools were either available or under experimentation that could be used to reduce mortality of sea turtles from interaction with fisheries. These included gear modification, new technologies and management of areas where fishery and sea turtle interactions are more severe.
22. Some delegates confirmed that trade in sea turtle products is not allowed in their countries and that all sea turtles are protected by law. It was also confirmed by some delegates that, with few exceptions, the incidental catch decreases the economic performance of fisheries and therefore fishers generally are willing to collaborate in reduction of bycatch of sea turtles. Some delegates also stressed the need to reduce the direct catch of sea turtles.
23. There was general recognition that the introduction of Turtle Excluder Devices (TEDs) have been very successful in developed countries, especially where there has been fishers involvement. In these countries, the ability to demonstrate economic benefits to fishers was stressed and the need to involve the fishing industry throughout the process of research and implementation. However, in developing countries, difficulties were experienced in introducing these types of devices, especially in small-scale fisheries and it was stressed that the socio-economic impacts need also to be considered.
24. There have also been promising results in pelagic longline fisheries including replacement of traditional J-hooks by circle hooks. Investigations on impact of different setting times and depth, moon phases, and different bait types have been performed in some areas. Such investigations have focused on the size and shape of hooks to obtain better results for the target species and incidental catch. The development of releasing tools and procedures, as well as guidelines and manuals for the treatment of sea turtles captured alive have also been produced. Based on such studies, one delegation advised that its country had introduced circle hook and bait requirements into its pelagic longline fisheries in both the Atlantic and Pacific Oceans. However, the applicability of experiments carried out in a few areas and only for some species was questioned. The need to expand these studies to other geographic areas and of active exchange of research results was also highlighted.
25. Several experiments are underway with other gears, such as bag nets, fish corrals and setnets that also capture bycatch species. Gillnets were highlighted as a possible threat, although more research is needed in terms of net materials and interactions with areas of abundant sea turtles. Nylon monofilament gillnets have been banned in some countries, especially as they can be quite destructive in terms of ghost fishing. Public awareness through avenues such as school programmes and building on religious and cultural beliefs was advocated as an important way to reduce impacts in these types of fisheries. Delegates from several developing countries also highlighted the need for more research on stationary coastal gear, in order to estimate the impact of such gears on sea turtle populations.
26. Cooperation between the countries and technical assistance from FAO is needed to implement the most successful technology in each region. Regional Fishery Bodies (RFBs) could play a leading role in such work, but specific solutions for each fishery and each region should be the objective of the ongoing research. The need to adopt an ecosystem approach and consider the impacts of mitigation on other bycatch species, such as sharks and seabirds, was raised. Some experience of these types of interactions with different types of hooks were reported, including possible increase in shark bycatch.
27. The Consultation reviewed two proposals provided to the meeting by Japan and USA, which were submitted as a basis for the development of Technical Guidelines by FAO as well as guidance for national or multilateral sea turtle conservation and management measures.
28. In describing the Japanese proposal, it was pointed out that it was in three parts: (i) fishing operations and related gear modifications; (ii) role of governments, and (iii) capacity building in developing countries. The proposal gives recommendation for general fishing operations, coastal shrimp trawls, purse seines (based on existing Inter-American Tropical Tuna Commission (IATTC) regulations), longlines, and other gears. Responsibility of governments included education and training, active participation of fishers and fishing industries, collection of information and data, legal aspects and the need for review of the effectiveness of mitigation measures.
29. USA explained that their proposal was similar to that of Japan, as the two proposals were developed collectively. The proposal recognizes that: (i) fishers need to be involved in the process; (ii) all threats to sea turtle stocks need to be addressed; (iii) need for financial and technical support, and (iv) the role of States, RFBs and other entities in sharing relevant information. The USA proposal highlighted recent scientific results that have lead to the implementation of practical and effective circle hook and bait technology to reduce sea turtle bycatch and bycatch mortality.
30. The Consultation agreed that the proposals formed a good starting point for discussion. It was pointed out that such Technical Guidelines should be globally applicable, practical and pragmatic but also flexible so that they can be implemented by all States based on reliable scientific data that is specific to a geographic region and fishery. Many delegations requested that FAO develop such Technical Guidelines, with RFBs taking on the role of making them more specific to their regions.
31. Several delegations also pointed out that socio-economic and cultural considerations need to be taken into account to a greater extent in developing and applying any guidelines. The implementation of guidelines should be based on better socio-economic data and information, as well as being prepared with the participation of local stakeholders. The rights of developing countries to develop their fisheries also needs to be respected and the use of specific guidelines as a barrier to trade needs to be avoided. In particular, the specific proposal concerning the use of TEDs in non-shrimp trawls and specific proposals concerning longline gear and purse seines needs to be re-considered and made more generic. Use of TEDs in shrimp trawls was also questioned as some experience has shown that there is insufficient information and research on what type of TED is most applicable. The Consultation noted that purse seine guidelines could also be difficult to apply in some regions of the world.
32. It was also stressed that guidelines should not be in conflict with existing regional agreements and when applied at national level they should not be cause of conflicts between governments and fisheries.
33. The need to build on and consolidate existing legislation was noted. Enforcement was also highlighted as a major issue, especially in developing countries. The need to integrate all activities undertaken by RFBs, existing sea turtle arrangements and instruments, and International Plans of Action was stressed. Reporting on progress in implementing the guidelines needs to be included.
34. Many delegations underlined the need for further research on: (i) interactions with other bycatch species; (ii) migratory pathways and areas of high interaction of fisheries and sea turtles, and (iii) turtle mortality from both fishing and non-fishing activities. Several delegations also requested strengthening of education and training, especially for small-scale fisheries.
35. Several suggestions for changing the structure of the proposals were provided and a small drafting group comprising China, Japan, Thailand and the USA was formed and requested to further elaborate the proposals and report back to Plenary.
36. The Consultation reviewed the draft for "Guidelines to Reduce Sea Turtle Mortality in Fishing Operations" provided by the drafting group. It was explained that the draft represents a combination of the two earlier proposals, and was based on the suggested changes in structure made in Plenary. The new draft takes into account the comments and concerns made by delegations. The Consultation considered that the guidelines should also apply to the direct take of sea turtles.
37. As a result of discussions, the Consultation agreed that the "Guidelines to Reduce Sea Turtle Mortality in Fishing Operations" (see Appendix E) be included as part of the report and recommended that it be used as input into the FAO Technical Guidelines.
38. Many comments and useful suggestions on this item were raised in earlier discussions and the Consultation agreed that these should be considered when drafting the guidelines and also included in separate recommendations from the Consultation.
39. In summary, the Consultation pointed out that development of guidelines by themselves would not be sufficient. Modification of gear and changing fishing practices would be extremely difficult without further technical and financial support. The different levels of development of countries might need to be taken into account and donor countries should provide support.
40. Support for training and awareness raising, in particular, were considered essential, but assistance is required. Current assistance in research and mitigation projects by some donors was described. A voluntary fund provided by donors to support such activities was considered as a possibility. Japan expressed its voluntary support through the Southeast Asian Fisheries Development Centre (SEAFDEC) and the Inter-American Tropical Tuna Commission (IATTC). The USA informed the Consultation of work of a technical nature carried out through bilateral and multilateral fora such as IATTC in the provision of replacement of circle hooks, collaborative training and research.
41. Priority for financial assistance should also take into account the prioritization of areas and species as outlined in the report of the Expert Consultation on Interactions between Sea Turtles and Fisheries within an Ecosystem Context.
