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The WCPFC has recently initiated a Shark Research Plan and adopted three conservation and management measures (CMMs) requiring controls on finning, encouragement of live release and data provision (CMM 2010‐07); no‐retention of oceanic whitetip sharks (CMM 2011‐04); and a prohibition on deliberately setting purse seines on whale sharks (CMM 2012‐04). In parallel with these WCPFC‐led shark activities, some members (CCMs) have instituted shark catch limits, established rules for no‐retention of any sharks whether dead or alive, and/or banned the use of wire leaders. This current situation represents a patchwork of controls and the net benefit in terms of reduced shark mortality is yet to be determined.
This paper examines three existing WCPFC shark measures in terms of their implementation and effectiveness. This analysis is complicated by a lack of specific objectives in each measure as well as a lack of verification data and review processes. Current implementation of CMM requirements appears to be at best ~60% and in several cases considerably lower. This is partially due to ambiguities in interpretation of the CMMs such that opposite outcomes can both be considered compliant. Extremely low regional observer program coverage (<2%) in the longline fishery, which catches over ten times as many of the key shark species as the purse seine fishery does, further hampers assessment of effectiveness. Nevertheless, it appears that the Commission’s finning controls provide only a negligible benefit to shark survival. Lack of consistent recording of shark discards/releases will similarly impede a future assessment of the effectiveness of the oceanic whitetip and whale shark measures.
It is thus concluded that although WCPO assessments have demonstrated the need for shark mortality reductions, these are not yet being delivered by the WCPFC CMMs. Protectionistic measures (e.g. no‐retention whether dead or alive) adopted by some CCMs for national waters are fundamentally different from the “full utilization” approach outlined in the International Plan of Action‐Sharks (the basis of the cornerstone WCPFC CMM) and highlight the need for a new, integrated regional framework in the form of a comprehensive shark CMM. By using shark fishing mortality as a single “currency”, such a framework can help to find common ground between measures adopted in different national jurisdictions and extend these principles into high seas areas. It can also avoid decision‐making stalemates arising from one‐size‐fits‐all proposals which suit some fisheries but not others. An approach similar to that used for tropical tunas is proposed whereby a fishing mortality management goal is set based on assessment results, and a package of mitigation measures designed to reach the goal is negotiated and implemented on an interim basis. Verification data are generated and retrospective analysis leads to periodic revisiting of the measure.
The paper concludes with recommendations for a) improving the Commission’s ability to confirm compliance with the existing measures; b) maximizing the effectiveness of the existing measures; and c) creating a framework within which the effectiveness of all measures (existing or proposed) can be judged on their ability to control fishing mortality for overfished shark stocks. The WCPFC has the opportunity and the responsibility to manage highly migratory shark stocks in a comprehensive and integrated manner across the Convention Area, and must therefore take actions which are not only expedient, but also meaningful and effective.
