1. Background

At its July 2003 meeting, the Marine Resources Advisory Council received an interim report from its Marine Program Financing Needs Subcommittee.  The subcommittee had been charged by the Council with reviewing and identifying marine resource program needs within DEC’s Bureau of Marine Resources and recommending to the Council a funding mechanism(s) to secure the monies necessary to meet these needs.

In its interim report, the subcommittee presented a list of DEC marine resource program needs that are unmet due to lack of personnel and/or financial resources.  The subcommittee also evaluated a number of potential sources of funds to meet these needs.  Among these, a licensing initiative that would encompass both the establishment of a state marine recreational fishing license and increases in commercial fishing licenses was the preferred alternative.  The subcommittee felt that, among the alternatives, this source of funds showed the most promise of securing a significant amount of increased funding for DEC marine programs in a reasonable period of time. 

Upon receiving the subcommittee’s report, the Council requested that the subcommittee continue its work by engaging the state’s marine recreational and commercial fishing industries in a dialogue on such a licensing proposal and, if possible and based on these discussions, to return to the Council in the future with a specific licensing proposal that had the support of both key elements of the marine recreational and commercial fishing sectors.

Separate licensing discussion groups have been established with leaders of New York’s marine recreational and marine commercial fishing industries.  This report deals with progress made by the recreational licensing group.  This group, informally known as the “Marine Recreational Fishing License Discussion Group,” was the first of the two groups to be created.  A similar report on progress of the commercial licensing group will be presented at the Council’s July 2004 meeting.

 

2. Progress to Date

The Marine Recreational Fishing License Discussion group was constituted in December 2003 and held its first meeting in early January 2004.  The group numbers approximately 25 individuals who hold leadership positions in the various segments of New York’s marine recreational fishing industry (angler clubs, “for hire” vessels, bait & tackle shops, etc.), including several recreational fisheries members of the Council.  To date, the group has met 4 times.  Aside from the first meeting (at the Marine Sciences Research Center, Stony Brook University), the group has met at the Sportfishing Education Center at the Town of Babylon’s Cedar Beach Marina.

The group’s discussions have focused on three aspects of the marine recreational fishing license issue:  the potential benefits and concerns expressed about the institution of such a license; the programs and activities that any license revenues would support; and the specifics of a licensing proposal/program.  Each of these topics is briefly summarized below.

a. Benefits/Concerns About a Saltwater License in New York

Potential Benefits

• Better information/Data on marine recreational angling in New York
• More and expanded DEC programs directed at marine recreational fishing interests/issues, etc.
• Greater involvement of recreational fishing industry in determining how DEC funds are spent in marine program
• Greater capacity in New York for marine research, stock assessments, etc.
• Greater recognition of economic importance of marine recreational fishing in New York

Concerns

• A burdensome administrative process for issuing a license may deter people from applying for one
• If a NYS saltwater license is established, there must be reciprocity with other states that have a saltwater license
• A saltwater license may result in reduced levels of participation in marine recreational fishing in New York, hurting dependent businesses
• Revenues from such a license will be spent inefficiently, as most public monies are
• License revenues must be maximally protected against diversion and/or expenditure freezing
• US Census data can be used to get better numbers on marine recreational fishing in New York, without recourse to a license
• License revenues cannot be offset by concomitant reductions in NYS General Fund support to DEC marine programs
• Other potential sources of additional revenue to DEC marine programs exist and should be more fully explored
• DEC programs funded through license revenues must address priority issues and needs of marine recreational fisheries in New York  

The group has and continues to discuss these concerns in terms of their legitimacy, likelihood, and how they can be effectively addressed or satisfied.   

b. Programs & Activities That Might Be Funded Through a Saltwater License

It has been recognized that the use of revenues accruing from a saltwater license in New York will be an important factor in the acceptability to the marine recreational fishing industry of any licensing proposal.  The programs and activities supported by license revenues must addressed issues and needs of importance to various segments of the marine recreational fishing community.  A draft list of potential such programs and activities has been assembled, reviewed and discussed by the group, and is now being developed in greater detail, including costs associated with the activities.  The elements currently on this list are presented below.  There was general agreement among the group members that improved recreational fishery-dependent data collection programs were a high priority issue, but the other elements are here in no particular order.

1.  Improved recreational fishery–dependent data collection programs

1A.  Expansion and improvements to MRFSS – Conduct independent surveys to determine with a high level of confidence the true magnitude and distribution of marine recreational fishing effort in New York (including geographic, seasonal, modal, time of date, duration, etc. distribution of angling trips and anglers’ residences).  New York State would assume responsibility and accountability for substantially expanded intercept and telephone surveys that are distributed proportionate to angling effort and that produce statistically valid estimates of marine recreational fishing catch and effect.  Outcome – accurate and reliable marine recreational catch estimates that can be used to help reach equitable quota management decisions.  Marine recreational catch distribution data that is sufficiently robust to enable evaluation of differential regulations in different modes and/or geographic areas.

1B.  Fisheries Observer Data – Place observers on “for-hire” recreational fishing vessels and commercial fishing vessels to observe, record and measure discards.  Outcomes - Generation of estimates of discards and discard mortality for use in regional stock assessments.  Length-frequency information from released fish in for-hire recreational fishery would enable the estimation, for example, of the impact of reducing size limits on recreational harvest levels.

1C.   Cooperative Angler Programs – ImplementCooperative Angler programs for all major recreational species to acquire data on recreational catch/effort, size frequency of released and landed fish, and scale samples for aging.  Outcome - marine anglers have an opportunity to contribute valuable data to fisheries managers.  Data is generated to compare to and use to help assess and control the quality of MRFSS data on New York’s marine recreational fishery.  Accurate and reliable Catch-Per-Unit-Effort (CPUE), length/frequency, and age data for popular species in the marine recreational fishery would result in improved stock assessments.

2.  New fishery-independent data collection programs 

2A.  Trawl/seine surveys in Atlantic Ocean and South Shore Bays – Conduct periodic trawl and seine surveys for resource & forage species in State waters of the Atlantic Ocean and in the South Shore Bays.  Outcomes – generation of new time series of data on abundance and distribution of fish in New York will lead to improved regional stock assessments.  Can also produce information on year-class strength of weakfish, winter flounder, scup and tautog on South Shore, and of abundance and dynamics of forage fish species.

3.   Expanded Law Enforcement Capability

3A.  Increase the number of Environmental Conservation Officers in the Marine Unit of DEC’s Division of Law Enforcement; expand their patrol capabilities through acquisition of additional vessels and equipment. Outcomes – Improved visibility and response time for marine enforcement.  Reduced frequency and number of illegally taken fish. 

4.  Service to Anglers

4A. Outreach and Extension Programs - Substantially expand The I FISH NY Program in DEC Regions 1 (Nassau-Suffolk Counties) and 2 (New York City); initiate the program in Region 3 (lower Hudson River Valley).  Outcome – Angler education programs, partner programs for educating and recruiting youths to marine angling and conducting fishing clinics and related events are significantly expanded.  Urban and suburban anglers are surveyed to determine their needs.  Focused projects are initiated to provide information, access improvements, clinics and training programs identified via the surveys.  Recruitment and retention of future anglers, particularly from youth and minority populations of New York City, Nassau and western Suffolk Counties.

4B. Angler Information – Produce informational materials about marine fishing access and opportunities and species that where/how to fish for them for distribution via DEC website and publication (like Florida’s or Virginia’s).  Outcome - Anglers have ready access to information on how/what/where + regulations + consumption advisories, etc.

4C. Promotion of Marine Sportfishing in New York - DEC partners with industry, Long Island Tourism and Convention Bureau, I LOVE NY Program, etc., to promote New York’s marine sport fisheries.  “Empire State Outdoors” and other state and national television and tourism websites should be a focal point for these efforts. Outcome – Increased awareness of the diversity and quality of New York’s marine recreational fishing experiences and opportunities in local and regional markets results in increase participation, particularly by out-of-region and out-of-state anglers.

4D.  Artificial Reefs - Conduct biological and angler surveys of current and proposed reef sites.  Construct reefs using manufactured reef materials (e.g. reef balls) and materials of opportunity.  Outcomes - DEC is able to produce monitoring and site assessment data necessary to evaluate existing reefs as required by permit conditions and to evaluate proposed new reef sites.  Existing reef permits are renewed and new sites are established and permitted.  Inshore and offshore reefs are enhanced by placement of highest quality reef materials, maximizing attachment of reef objectives.

4E. Fishing Access - Facilitate & expedite the development of boat ramps and shore fishing access facilities.  Secure state and federal capital funds for construction.  Accelerate completion of facility design, bidding and award of construction contracts.  Outcomes - New boat ramps, piers and shore access facilities are completed more expeditiously.  New project opportunities to improve fishing access are identified.

4F.  Surveys - Anglers are periodically surveyed to ascertain their satisfaction, motivation, needs for increased participation, etc.  Outcomes –DEC and fishing industry are able to modify their marine angler services to better meet the needs and expectations of the marine recreational fishing public, thereby maintaining and building participation rates.

5.  Research

5A. Research – Conduct targeted research on issues of priority to New York’s marine recreational fishing community (e.g., predation rates on winter flounder; impact of piscivorous wildlife on marine fish stocks; release mortality rates; biology, movements, and dynamics of local stocks of fish such as tautog and winter flounder, etc.).  Outcomes – Information that enables management to improve fish stocks and angling success.

6. Habitat Inventorying

6A.  Habitat - Inventory and assess important fish habitat in New York’s Marine District, such as wetlands, eelgrass beds, rock/reef/shell bed habitat.  Outcomes – A better understanding of the location, extent and condition of marine fishery habitat enables management intervention to protect, restore, and improve habitats as necessary.

c. The Structure and Specific Provisions of a Saltwater License Program

At its most recent (29 April 2004) meeting, the discussion group reviewed the draft marine recreational fishing license proposal authored by Pat Augustine.  This proposal lays out the specifics of a hypothetical licensing proposal (i.e., who pays; how much; what is done with the revenue; guarantees against diversion, etc.).  The group identified those parts of this proposal that it thought were appropriate and also those aspects that, in its view, were problematic or should be developed in a different way.  Based on this review and discussion, the Augustine proposal is being revised and the revised version will be presented to the group at its next meeting.

The Discussion Group’s discussions have been frank, respectful of the differing views on key issues that are represented around the table, and very constructive.  Whether the group will eventually develop and recommend a particular licensing proposal to the Council remains to be seen. 

This report was drafted by Marine Resources Advisory Council Chairman Bill Wise and was sent to DG members for review and comment prior to being presented to the Council.  No comments on it were received prior to it being distributed to the Council or appended to this bulletin.

 

Page last modified Monday, July 5, 2004 by George E. Carroll