World Wide Catalog 1995 Summer/World_Wide_Catalog_InfoMagic_Summer_1995.iso/pages/kssnmfsh.gov/tmcintyr/text/chapter8.txt

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VIII.  International Programs and Activities


      The Department of Commerce furthers the protection and conservation of marine
mammals through participation in existing international agreements, and, when necessary,
negotiation of new agreements.  This chapter describes NMFS involvement in international
programs and activities during 1990 and 1991.


Commission for the Conservation of Antarctic Marine Living Resources

      The Commission for the Conservation of Antarctic Marine Living Resources (CCAMLR)
and its Scientific Committee were established in 1982.  The group meets annually to consider
issues related to Antarctic living resources.  The Scientific Committee regularly reviews the
status of marine mammal populations, and, as necessary, makes recommendations to the
Commission.  The Commission also reviews annual reports by member nations concerning
population assessments and steps taken to avoid the incidental mortality of Antarctic marine
living resources.


Marine Mammal Populations

      During 1990 and 1991 the Commission sponsored populations surveys of several marine
mammals species.  The Commission convened a workshop held in Monterey, CA, May 22-23,
1991 to assess the current status of southern elephant seals.  A review of southern elephant seal
stock abundance and trends indicates that populations are declining in the Indian and Pacific
Ocean sectors of the Antarctic.  In addition, simulations suggest that the South Georgian stock
may also be declining, but no direct evidence is available.  The workshop concluded that it was
not possible to identify factor(s) that are causing the population decline.  The workshop did,
however, identify several areas of priority research.

      In light of evidence that crabeater seal abundance may have declined dramatically during
the 1970's, the Scientific Committee and the Scientific Committee on Antarctic Research
(SCAR) urged that additional surveys of pack ice seals be conducted.  The Commission, in
1990, recommended that members conduct censuses of seals in pack ice areas whenever possible
during icebreaker operations.  At the 1991 meeting, several members indicated their intent to
initiate surveys of crabeater and other pack ice seals.


Working Group on the CCAMLR Ecosystem Monitoring Program (WG-CEMP)

      The primary focus of this Working Group has been the study of krill and predator/prey
relationships.  Krill is the primary prey species for large numbers of marine mammals in the
Convention area.  In response to concerns expressed by WG-CEMP about the impact of krill
fishing on foraging by land-based predators, the Commission and the Scientific Committee
requested the Working Group to calculate prey requirements of krill predators in certain priority
areas.

      The Working Group has made good progress in synthesizing data and it is anticipated that
these efforts will culminate in a 1993 workshop.  The Subgroup on survey design has made
substantial progress on prey monitoring research methods.  Survey designs for assessing the
abundance and distribution of krill are available to members and members are encouraged to
implement such studies.

      At its 1990 meeting, the Commission adopted a conservation measure that specified a
procedure for providing CCAMLR protection to CEMP sites.  In 1991, the United States
prepared a draft management plan for protection of the Seal Islands CEMP site.  Following
review of the plan by the Working Group and the Scientific Committee, the Commission adopted
a resolution asking members to voluntarily comply with the management plan pending conclusion
of consultations with SCAR, the Antarctic Treaty Consultative Parties, and Contracting Parties
to other components of the Antarctic Treaty System.  The Commission also agreed to advertise
the plan to States that are not a party to the CCAMLR but whose nationals are present in the
Convention area.


Assessment and Avoidance of Incidental Mortality

      Members' reports on observation of lost or discarded fishing gear were submitted at the
Commission's 1990 and 1991 meetings.  During the 1990 meeting, the Commission noted that
the United Kingdom intended to continue with beach surveys at South Georgia.  The
Commission encouraged members to use methods applied at South Georgia.

      The United States tabled a proposal at the 1990 meeting calling for a ban on driftnet
fishing in the Convention area.  The proposal was adopted as a Commission resolution that noted
member agreement not to expand large-scale pelagic driftnet fishing in the Convention area and
endorsing the goals of the United Nations General Assembly Resolution 44/225.


High Seas Driftnet Fishing

      Large-scale pelagic driftnet fisheries rapidly expanded in the North and South Pacific
Oceans during the 1980s.  Vessels from Taiwan, Japan and the Republic of Korea set 20-50km
long driftnets to catch flying squid.  The vessels from Taiwan and Japan also fish for albacore
and billfish.  In addition, Japan operates a high-seas driftnet fishery for salmonids.


U.S. Response

      The United States and other nations are concerned about the impacts of these fisheries
on marine life and their ecosystems.  Substantial evidence exists documenting the incidental take
of marine mammals, seabirds, marine turtles, and non-target species and cephalopods.  Of
particular concern is the impact of large-scale driftnet fisheries on the threatened northern fur
seal population.  The U.S. also believes that high seas driftnet fishing for immature salmonids
is inefficient and indiscriminate.  Concern about the status of high seas salmonid stocks has
heightened because some flying squid vessels have targeted these stocks in violation of
international law.

      In response to concern over the high-seas salmon fishery, the illegal take of salmon on
the high seas, and incidental mortality among marine mammals, the U.S. enacted the Driftnet
Impact Monitoring, Assessment, and Control Act.  This legislation requires the Secretary of
Commerce through the Secretary of State,  and in cooperation with the Secretary of the Interior,
to negotiate cooperative agreements with countries whose nationals operate in the North Pacific
high-seas driftnet fisheries.  The agreements should provide for monitoring and assessment
programs involving on-board scientific observers and enforcement programs focusing on squid
fishing in seasons and areas where salmon might be taken.

      As of 1990, the U.S. had successfully negotiated agreements with Japan, Korea, and
Taiwan.  In 1991, results were released from observer programs in each of the five driftnet
fisheries operating during the period between May 1990 and May 1991 covered by these
agreements.

      The program monitored 5300 operations on 143 vessels.  The observed bycatch of marine
mammals totaled 3541 cetaceans and 581 pinnipeds.  These totals are broken down by fishery
and species in Exhibit 8.  Northern right whale dolphin, Pacific white-sided dolphin, Dall's
porpoise and northern fur seal were the most commonly caught species in the squid fisheries.
In the fisheries directed at albacore, striped dolphin, common dolphin and northern right whale
dolphin were the most common bycatch species.


Multi-Lateral Controls

      In 1989, the U.N. General Assembly adopted a driftnet resolution co-sponsored by the
United States.  The resolution prohibited expansion of high-seas driftnet fishing, and called for
review of all driftnet data by June 30, 1991, a cessation of South Pacific driftnet fishing by July
1, 1991, and a worldwide cessation of driftnet fishing by July 1, 1992, unless effective
conservation and management measures are taken.

      Following actions taken by the United Nations, member nations, and international fishing
organizations to support the 1989 resolution, the General Assembly reconsidered the matter in
its 1991 session.  On December 20, 1991, the General Assembly, by consensus adopted a
resolution co-sponsored by the United States, Japan, and 28 other nations.  This resolution calls
on members of the international community to :
                                                                        Exhibit 8
          Incidental Take of Marine Mammals in the North Pacific Ocean
           High Seas Driftnet Fisheries, 1990 (Includes Lethal Takes,
    Animals Released Alive, and Takes where Condition of Animal is Unknown)






Species
Squid
LARGE-MESH



Japan
Korea
Taiwan
Japan1
Taiwan




Pinnipeds

N. fur seal
545
4


12



Elephant seal
1







Unidentified
19







Total pinnipeds
565
4


12












Dolphins
Unidentified

2
4
152
201



N. right whale
840
54
7

41



Pacific white-sided
459
29
5
6
6



Common
69
6

479
47



Striped
6
1

500
21



Spotted



37




Bottlenose
1


15
2



Rough-toothed



18




Risso's
2


29
1



Pygmy killer whale



17




False killer whale
2


7




Short-finned pilot
3







Unid. black whale
1


5
3



Unid. small
41






Porpoise
Dall's
318
23
2

1






Whales
Cuvier's beaked
2


2




Pygmy sperm
1


20
3



Dwarf sperm




1



Sperm



4




Minke



1




Unidentified Whales
12
1
1
26
4


TOTAL cetaceans
1757
116
19
1318
331


# of operations monitored
2879
911
356
826
358


Amount of net monitored(tans2)
2281895
669662
170415
511589
194953


1 Excludes bycatch in Japanese coastal waters.
2 Tan is standardized to 50 m of net.
                                    Reduce large-scale high-seas driftnet fishing effort by 50 percent by June 1992;

                                    Continue to ensure that driftnet fisheries do not expand into new areas; and

                                    Implement fully a global moratorium on all large-scale driftnet fishing on the high seas  in
                                     all areas by December 31, 1992.

Although the Resolution does not address large-scale driftnet fishing in the EEZ of individual
nations or the use of small driftnets on the high seas, sponsors believe that the moratorium will
substantially eliminate the risks  to target and non-target species and to pelagic ecosystems.


International Whaling Commission

                                     At the 43rd Annual Meeting of the International Whaling Commission (IWC), the U.S.
achieved the following objectives:

  Continue to support implementation of the IWC's 1982 moratorium decision;

  Continue to monitor research proposed and conducted under special permits;

  Broaden discussion of the conservation needs of small cetaceans; and

  Secure an aboriginal quota of bowhead whales for U.S. Eskimos.

The Commission also discussed issues related to humane killing, the comprehensive assessment,
and small-type whaling proposals.


Commercial Whaling Moratorium

   Currently, all IWC members are observing the moratorium on commercial whaling.  The
Commission took three major actions with respect to the moratorium at the Annual Meeting.
First, it took steps to initiate a thorough review of the Schedule to the Convention.  Terms of
reference for a working group were adopted and member governments were asked to submit
papers by October 31, 1991 for consideration by the working group.  Second, the Commission
denied Iceland's request to allow catch limits of 170 minke whales and 92 fin whales off Iceland.
Third, the Commission denied Norway's request to take minke whales from the northeastern
Atlantic stock.

   The IWC also made significant progress towards development of a revised management
procedure (RMP) for baleen whales.  Eventually, the RMP will replace the New Management
Procedure which is seriously flawed and led to the overharvesting of some stocks.  It is the U.S.
position that changes in the moratorium should not be considered until a scientifically acceptable,
fully developed RMP, with adequate surveillance and enforcement provisions, is adopted.


Special Permits

   Since 1985, the Commission has focused attention on the issuance of special permits and
research programs involving the take of whales under these permits.  The Scientific Committee,
in 1985 formulated a series of guidelines governing the review of special permits.  In 1986, the
Commission adopted a resolution that further defined the conditions and criteria for issuing
special permits.

   At the IWC's 1991 meeting, the Commission rejected research proposals submitted by
Japan and the Soviet Union.  The Japanese proposal, which called for the take of, at most, 330
minke whales from the southern hemisphere stock to  study age-specific natural mortality, was
rejected because the research program did not fully satisfy the IWC's criteria.  A resolution
inviting Japan to reconsider its program was passed by consensus for the second consecutive
year.

   The Soviet proposal, which involved the take of 90 minke whales from the Sea of
Okhotsk Stock, was designed to support research on the morphological and physiological
characteristics of the populations and to obtain samples for determining age, sexual and physical
maturity, and reproductive conditions.  Accepting the Scientific Committee's conclusion that the
proposal was seriously flawed, the Commission adopted a resolution stating that the research
program did not contribute information essential for management or support other important
research needs.  The proposal further requested the Soviet Union to refrain from proceeding
until the program is revised.

Aboriginal Subsistence Whaling


   The Commission made no changes to existing aboriginal subsistence catch limits for
central Atlantic minke whales and north Atlantic humpback whales.  For the years 1990 through
1992, the limit for central Atlantic minke whales taken by East Greenlanders is 12 per year.
The limit for north Atlantic humpback whales taken by Bequians of St. Vincent and the
Grenadines is 3 whales each for the 1990/91, 1991/92 and 1992/93 winter seasons.

   The IWC established the following aboriginal subsistence catch limits:

  Bering-Chukchi-Beaufort Seas bowhead whales taken by Alaskan Eskimos -- 141 strikes for
   the years 1992-94 with up to 13 carryover strikes.  This limit is subject to the constraints
   that no more than 54 whales my be struck to land 41 whales in a single year and that the
   limit will be reviewed annually in light of advice given by the Scientific Committee;

  Eastern north Pacific gray whales, taken on behalf of Soviet Eskimos -- 169 for each year
   1992-94;

  West Greenland fin whales taken by West Greenlanders -- 21 for each year 1990-91; and

  West Greenland minke whales taken by West Greenlanders  --  a maximum of 115 whales
   struck in any one year 1992-94 and maximum total of 315 whales struck for the three year
   period 1992-94.

Comprehensive Assessment

                                     After four years of reviewing proposals, the Scientific Committee recommended a revised
management procedure to be used when a single stock of a species resides on a whaling ground.
The Commission accepted this recommendation and provided additional instructions to the
Scientific Committee for completing development of an RMP for multi-stock species of whales.
The resolution accorded highest priority to the objective that the risk of extinction should not
be increased by exploitation.  At an intercessional meeting scheduled for March 1992, the
Scientific Committee will focus on its current agenda of work.


Humane Killing

                                     The Commission considered a number of issues related to the humane killing of whales.
 The United States, Denmark, and New Zealand delivered presentations or submitted documents
on weapons and methods.  The United States delivered a presentation on the bowhead whale
weapons improvement program.  The program includes the use of an improved projectile, a new
emphasis on education and training, and continued monitoring of the need to develop a penthrite
projectile for the shoulder gun.  On behalf of Greenland, Denmark submitted documentation
concerning the detonating grenade harpoon required for hunting fin and minke whales and
information on the rifle hunt of minke whales.  New Zealand presented a document that
discussed the use of firearms to dispatch stranded whales.

                                     In other actions, Brazil stated that it is withdrawing its objection to the ban of the cold
harpoon.  Japan refused to present its laws regulating the killing of Dall's porpoise, stating that
the matter is outside the competence of the Commission.  Japan did agree, however, to discuss
the issue on a bilateral basis.  The United Kingdom, supported by the United States and other
member nations, proposed that a workshop of experts be convened to evaluate the penthrite
grenade harpoon.  The Commission agreed to hold the workshop prior to next year's meeting.


Socio-Economic Implications and Small-type Whaling

                                     The Technical Committee's working group met to consider the social and economic
impacts of the commercial whaling moratorium and to examine small-type whaling issues.
Presenting a report on the moratorium's impact on two whaling communities, Japan argued that
small-type coastal whaling is similar to aboriginal subsistence whaling.  Japan also contended
that the moratorium had serious cultural and socio-economic impacts on some small Japanese
minke whaling communities.  Focusing on these arguments, the working group concluded its
deliberations with the same recommendations as the preceding year:

                                    Continue the working group;

                                    Request abstracts of documents by December 1, 1991;

                                    Convene a meeting if abstracts are submitted; and

                                    Request that completed documents be submitted by April 15, 1992.

                                     At the Commission meeting, Japan requested an interim quota of 50 minke whales for
its small-type coastal whalers.  Japan argued that this take level would not harm the stock and
the whale meat and by-products would be consumed primarily by the local communities.  Noting
that the Scientific Committee could not determine the effect that this level of take would have
on the stock and that any quota would violate the moratorium, the Commission did not approve
the Japanese proposal.


Small Cetacean Resolutions

                                     The IWC adopted a resolution, proposed by New Zealand, requesting the Scientific
Committee to continue its data collection and reporting efforts on the take of small cetaceans.
The resolution also requested that the IWC Secretariat forward the Committee report to
appropriate governments, intergovernmental organizations, the Secretariat of the United Nations
Conference on Environment and Development, and other entities.

                                     The United States introduced a second resolution that recounted the Scientific
Committee's five major recommendations on small cetaceans.  This resolution was withdrawn
after Commission members raised questions about the IWC's legal competence to debate the
issue of small cetaceans.  The objective of the U.S. resolution, forwarding the Scientific
Committee's recommendations to concerned
governments, however, was accomplished by the New Zealand resolution.


U.S.-U.S.S.R. Marine Mammal Project

                                     The primary goal of this cooperative research program is (1) to study the biology,
ecology, and population dynamics of marine mammal species of interest to both nations and to
(2) foster effective management of these animals.  During 1990 and 1991, U.S. and U.S.S.R.
scientists participated in two joint research efforts: a study of Steller sea lions in the Kuril
Islands, U.S.S.R. and study of adult female northern fur seals in the Commander Islands,
U.S.S.R.

                                     In the summer of 1991, scientists from the two countries returned to the Kuril Islands
to follow-up on Steller sea lion research conducted in 1989.  Methods included satellite tagging,
counts, and flipper tagging.  Although not all sites surveyed in 1989 were revisited, the study
indicated that the number of animals did not change significantly.

                                     The purpose of the northern fur seal study was to examine foraging behavior and to
explain the difference observed in rates of decline between the U.S.  and the U.S.S.R.
populations.  Foraging trips were shorter for Commander Island seals as compared to Pribilof
Island seals.  Diet also differed: Commander Island seals eat predominately squid while Pribilof
Island seals eat a mix of squid and fish.  Other physiological data is currently being analyzed
to compare the two herds.  In addition, scientists are analyzing blood samples to identify the
island of origin for fur seals incidentally taken in the foreign high-seas squid driftnet fishery.
Results of this analysis will help researchers determine if the fishery-related mortality is affecting
one herd more than the other.