Action Plan for the Northern Abalone in Canada [Final] 2012: Actions and Performance Measures

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The specific activities to recover Northern Abalone are summarized in Table 4. Some measures to recover the Northern Abalone population in Canada pre-date the 1990 fisheries closures and the species’ legal listing under the SARA. Many of the actions listed below were outlined in the 1999 Workshop for Rebuilding Northern Abalone in B.C. (Dovetail 1999), the 2002 National recovery strategy adopted under the Accord for the Protection of Species at Risk (DFO 2002), the 2004 draft National Recovery Action Plan for Northern Abalone, and Recovery Strategy for Northern Abalone (2007), and have been ongoing and improving over several years. To date, these measures continue to be the most comprehensive and extensive means known to recover abalone. New actions or updated approaches have been added to Section 2.4.1 as appropriate. New activities may be added, or those existing activities adapted and revised as new information is gathered.

1. Management

Maintain the fisheries closures for Northern Abalone

Abalone fisheries closures were implemented in 1990 to allow for natural population recovery. However, there is evidence that the reduced abundance and resulting fragmentation of the population (i.e., animals spread too far apart) is hindering recovery. Model simulations from Lessard et al. (2007) predict that mortality rates >0.20 would result in further decline in the Northern Abalone population, and recommend that maximum human-induced mortality be near zero. Additional abalone harvest of any kind will significantly hinder recovery. To that end, the following management initiatives will be undertaken:

2. Protection

Implement a compliance promotion and enforcement (proactive and reactive) plan for the recovery of Northern Abalone.

Fisheries and Oceans Canada, Conservation and Protection (C&P) Branch promotes and enforces compliance with legislation that protects Northern Abalone. Efforts are both proactive and reactive. C&P activities for Northern Abalone are based on: Education and shared stewardship (e.g., public education, media releases, monitoring agreements, presentations to industry, schools and First Nations communities); Monitoring, control and surveillance activities (e.g., land, sea and air patrols, fish inspections, enforcement activities, interagency partnerships, and response to non-compliance); and Management of major cases and special investigations in relation to complex compliance issues (e.g., long-term, intelligence-based investigations that require a high level of specialized investigative skills).

Compliance promotion and enforcement are necessary to reduce mortalities of Northern Abalone from direct illegal harvest (poaching) and to encourage the public to contact C&P when witnessing suspicious activity. Protection of aggregations of abalone and habitats that support them will prevent losses of individuals and important habitat. Detection of abalone in transit disrupts illegal trade between buyers and sellers and allows officers to gather intelligence on individuals and groups involved in the illegal abalone trade. The following compliance and enforcement activities will be undertaken (subject to available resources):

2.1. Education and shared stewardship activities:

Engage clients, stakeholders and First Nations in compliance decision-making, monitoring agreements, and activities.

Discuss abalone protection with individuals at wharves, on general patrols, at community events, and at schools.

Interact with clients and stakeholder groups, First Nations, industry and interested parties on the importance of abalone protection.

Promote abalone protection and the Observe-Record-Report (ORR) toll-free reporting line (1-800-465-4336).

2.2 Activities to monitor, detect and respond to cases of non-compliance:

Surveillance of port and offloading sites

Conduct extensive on-the-water patrols, dive patrols and air patrols (including covert operations) to monitor areas, vessels and persons of interest.

Build partnerships with other Canadian and international agencies (e.g., Department of Justice, Royal Canadian Mounted Police, Environment Canada, and Canadian Food Inspection Agency).

Respond to cases of non-compliance (e.g., warnings, alternative measures, orders, prosecutions, community-based justice processes).

2.3. Develop major cases and intelligence-based investigations on illegal abalone trade.

Build intelligence to disrupt the illegal supply-demand chain.

Follow up on tips received from the public, informants and partners.

Work with national and international enforcement agencies to share intelligence and disrupt movement of abalone.

2.4.Continue to review development proposals under the Fisheries Act following the impact assessment protocol (Appendix 4) to mitigate harmful alteration, disruption or destruction of abalone habitat and critical habitat.

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3. Education and Awareness

Implement a communications campaign to stop illegal harvest and raise public awareness of Northern Abalone.
Communications campaigns are expected to increase support for, and awareness of, enforcement efforts, encourage public involvement and community stewardship of abalone. The communications approach will be used to support an ‘anti-poaching’ message:

3.1 Continue to raise awareness of the plight of the abalone and the threats to their survival, including, but not limited to:

Continue to provide communications support to stewardship activities to further the First Nations and community involvement in the abalone action plan.

Promote delivery of the education tool kit through distribution and use within the public education system.

Continue to use abalone displays at public events and in public areas, and identify new and upcoming events at which to promote abalone information.

Engage in media relations to highlight abalone issues, status and stewardship successes.

3.2 Stop or discourage illegal harvesting activities, including but not limited to:

Continue to promote the Abalone Coast Watch Program and the Observe-Record-Report phone number (e.g., sticker/card with reporting information and phone number).

Continue to involve First Nations and other coastal communities in monitoring and reporting poaching activities.

Engage in media relations to deter illegal harvest, and raise awareness of enforcement actions and results (e.g., arrests, convictions, fines).

Where possible, foster public support of court imposed sentencing that is appropriate to the status of Northern Abalone. This may be achieved by educating the general public through publications, other communication media, and the provision of impact statements to the court.

3.3 Significantly reduce demand for (illegal) Northern Abalone by targeting sales and consumption of Northern Abalone, including but not limited to:

Engage in media and public relation to explain the distinction between illegal and legal types of abalone in the marketplace.

Foster restaurant (e.g., “We only use legal abalone” sticker) and consumer-directed awareness programs (e.g., Marine Stewardship Certification, Seafood Watch).

4. Research and Population Rebuilding

Research that leads to improved understanding of threats, life history, recruitment and predator-prey interactions with Sea Otters will assist in developing long-term population and distribution objectives for Northern Abalone recovery. The potential contributions of First Nations traditional knowledge to improved understanding of Northern Abalone habitats is recognized and supported by an ecosystem approach. Evaluation of pilot projects is necessary to prioritize carrying out activities, as well as determine the appropriate rebuilding method(s) to address poor adult recruitment and to fill knowledge gaps on Northern Abalone biology, habitat and ecology. Criteria for evaluating feasibility of pilot projects should include the method’s ability to increase abalone abundance in study areas, efficiency, practical application and cost effectiveness. Studies and findings about abalone in other jurisdictions may also be incorporated into B.C. activities as applicable. Some research findings, including abalone traditional knowledge, may overlap and/or complement one another.

a) research on Northern Abalone to improve understanding of abalone recruitment and species interactions:

4.1 If a disease is detected, conduct examinations to identify the cause of disease(s). If the disease is determined to be infectious, investigate the etiological agent to identify the pathogen and determine the biology of the pathogen to find methods of prevention or control.

4.2 Conduct computer simulations to determine potential larval dispersal mechanisms.

4.3 Kinship analyses may be conducted to identify adults to their progeny in support of linking the source of adult concentrations with the proportion of their recruited progeny in an area in (i) wild adult aggregation studies, and (ii) hatchery-raised abalone outplanting studies.

4.4 Investigate ecological interactions with Sea Otters and their role in the recovery of Northern Abalone by establishing pilot research areas where Sea Otters occur to determine abalone population parameters under the effects of Sea Otters and to determine population and distribution objectives in the presence of Sea Otters.

4.5 Evaluate feasibility and effectiveness of pilot aggregation and translocation projects. Aggregating reproductive adult abalone is intended to increase density and improve reproductive success; and translocating “surf’ abalone to calmer, kelp abundant habitats, is intended to improve growth rates and reproductive success¹⁰.

4.6 Evaluate the feasibility and effectiveness of outplanting¹¹ using data from pilot projects conducted between 2000 - 2010. Pilot projects initiated under the rebuilding program have concluded.

4.7 Promote additional traditional knowledge research, using appropriate and respectful methods (e.g., HMTK Study Participants et al. 2008). Observations regarding habitat requirements and critical habitat areas may be valuable information that First Nations TK can contribute to abalone rebuilding (See Appendix 3 for example interview questions).

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b) Continue to promote abalone population rebuilding initiatives in collaboration with First Nations and other coastal communities

First Nations and coastal communities have taken a lead in population rebuilding projects. Without this involvement, contribution and interest, many of the population rebuilding efforts and the associated research activities may not be possible (e.g., cost, time and effort prohibitive). Working co-operatively with coastal First Nations on proposals for projects that are in First Nations’ local areas, and with coastal communities and possibly other jurisdictions, will assist in the efforts for abalone population rebuilding.

While wild-to-wild translocations and aggregations of adults and outplanting of hatchery-raised abalone to the wild have shown some promise, their outcomes have often been poor and uncertain (Tegner 2000). In addition, their effects are likely very localized and may not be suited for species recovery on the whole. Evaluation is necessary (see Actions 4.5, 4.6 above) to determine appropriate use of these methods.

4.8 Conduct small scale enhancement of habitat to monitor and increase survival of early abalone benthic stages. Northern Abalone, especially juveniles, are cryptic and hide in rock crevices, which makes monitoring of juvenile survivorship difficult. Currently, contained units (concrete blocks caged in small enclosures (e.g., crab traps), are being used to increase rugosity (i.e., hiding crevices), to monitor juvenile and early life stages’ survival and species interactions (e.g., with Sea Otters), and to allow efficient sampling without disrupting the natural environment.

4.9 Examine growth, survival and distribution of early benthic stages in relation to local habitat, algal, predator and competitor species, in order to determine the parameters that contribute to higher juvenile densities (recruitment). Promote the participation of First Nations in identification of habitat requirements for the rebuilding program. Years of observations can potentially provide information on habitat characteristics; previous distribution; particularly productive areas; areas predominated by juveniles or unusually large abalone; and spawning areas.

5. Population Monitoring

Monitor population status of Northern Abalone

Establishing a time series of abundance estimates is needed in the five biogeographic zones¹² to determine the progress (decline or increase) of recovery in the Northern Abalone population compared to the population and distribution objectives. Ongoing monitoring of the abalone population is needed to assess its recovery and long-term viability, and the effectiveness of threat mitigation. Continuation of the current time series is needed to model and study recruitment variation, and population dynamics, in support of rebuilding efforts. The data collected in these surveys will be necessary to evaluate all of the objectives-based performance measures.

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The performance measures outlined in Section 2.5 of the Recovery Strategy for Northern Abalone (2007) also apply to this action plan. Some questions from the recovery strategy have been re-framed (shown in italics) to focus and support future analyses of performance and progress towards achieving the stated objectives. A report on progress toward addressing each of the action-based performance measures from the recovery strategy is provided (Appendix 2).

Objective-based performance measures:

Did the mean densities of large adult (≥ 100 mm SL) northern abalone decline below 0.1/m2 at surveyed index sites in Haida Gwaii and North and Central Coast? Or did it increase?
Did the percentage of surveyed index sites with large adult (≥ 100 mm SL) northern abalone decrease (<40%)? Or did it increase (>40%)?
Did the annual estimated mortality rate for mature (≥ 70 mm SL) abalone drop to < 0.20, and the mean densities of mature (≥ 70 mm SL) abalone increase to greater than 0.32/m2?
Were more than 40% of the quadrats (m2) occupied by abalone?

Action-based performance measures:

Management

Was the coast-wide closure to northern abalone harvesting maintained and enforced? Is there evidence for success in detecting and apprehending illegal harvesters?¹³

Protection

Was a proactive protective enforcement plan implemented? How many reports relating to abalone harvesting were provided to enforcement officers and the toll free enforcement line (Observe-Record-Report)? To what degree were these reports investigated and resulted in charges and convictions? How much effort has been spent on enforcing abalone closures (e.g., months, hours)? What were the trends in enforcement hours and resulting charges and convictions over the period before and during implementation of the recovery strategy? Has the impact of the illegal harvest been studied further?

Education and Awareness

Was a long-term communications strategy implemented? How many and what kind of communication materials and/or actions were produced and/or undertaken? How many people, and where, did the communications activities reach? What indications for increased awareness (e.g., did visits to the abalone web site increase, what level of participation at workshops?) were a result of communications efforts?

Research and Population Rebuilding

What significant new knowledge was gained through research that would directly contribute to the rebuilding of the Northern Abalone population? How many population rebuilding initiatives were undertaken? Was there an observed increase in juvenile abundance and/or recruitment as a result of rebuilding experiments? Does rebuilding appear to be a viable or promising strategy to recover the wild abalone population? What reports (technical or primary publications) were prepared that provide results of surveys and biological studies?

Population Monitoring

Were regular surveys continued in each of the biogeographic zones¹⁴?

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The specific activities to recover Northern Abalone are summarized in Table 4. Activities are largely ongoing, and implementation dates¹⁵ are given. Where appropriate, partnerships with specific organizations and sectors have been identified. These partnerships and organizations will provide expertise and capacity to carry out the listed action. In consideration for reducing costs, activities will be combined where appropriate. Fisheries and Oceans Canada encourages groups and individuals other than those listed in Table 4 to participate in the recovery program for Northern Abalone in B.C. The list of organizations below will be adapted as needed.

Many actions in Table 4 were prioritized by the ART and AbRIG during the 2004 action planning process. Ratings and participation were re-confirmed at the 2009 AbRIG meeting. Priority ratings used in 2004 and 2009 were adapted from the criteria established by the national recovery program RENEW (Recovery of Nationally Endangered Wildlife; A Working Draft - Recovery Operations Manual 20 November 2001):

Key to Abbreviations used in Table 4:

BMSC

Bamfield Marine Sciences Centre Public Education Program

B.C. coastal communities

CCG

Canadian Coast Guard, Fisheries & Oceans Canada

CFIA

Canadian Food Inspection Agency

DFO

Fisheries and Oceans Canada

DND

Canadian Department of National Defense

Environment Canada - Habitat Stewardship Program for Species at Risk (HSP) and Aboriginal Funds for Species at Risk (AFSAR)

First Nations

HASP

Heiltsuk Abalone Stewardship Project (Heiltsuk Fisheries Program)

HGAbS

Haida Gwaii Abalone Stewards, a partnership of the Haida Fisheries Program, Skidegate Band Council, Old Massett Village Council, Laskeek Bay Conservation Society, Gwaii Haanas National Park Reserve and Haida Heritage Site, World Wildlife Fund Canada, Simon Fraser University (SFU) Centre for Wildlife Ecology, SFU School of Resource and Environmental Management, Environment Canada and Fisheries and Oceans Canada.

KASP

Kitasoo Abalone Stewardship Program (Kitasoo Fisheries Program)

MFP

Metlakatla Fisheries Program

NFD

Nisga'a Fisheries Department

NGOs

Non-governmental Organizations (e.g., Marine Stewardship Certification, Seafood Watch programs)

PCA

Parks Canada Agency

Proponent

Proponent for the works or developments on, in or under the water

PROV

Province of B.C. Ministry of Environment, B.C. Assets and Lands (provincial government), B.C. Conservation Officers Service

RCMP

Royal Canadian Mounted Police

TRAFFIC

Wildlife Trade Monitoring Network

Univ

Universities, e.g., Simon Fraser University, University of Victoria, and Thompson Rivers University

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Table 4. Proposed Implementation Schedule. Activities listed are largely ongoing and many recovery measures were implemented prior to SARA’s proclamation and to the SARA Recovery Strategy (DFO 2007).
Recovery Activities	Obj.	Priority	Threats or concerns addressed	Responsibility		Start Date
Recovery Activities	Obj.	Priority	Threats or concerns addressed	Lead	Partners¹⁶	Start Date
1. Management
1.1 Aboriginal, recreational and commercial abalone fisheries remain closed	All	U	Harvest Low recruitment	DFO	CCG	Since 1990
1.2 Restrict release of detailed distribution and location to mitigate poaching and destruction of critical habitat	1, 2, 3	U	Harvest Low recruitment Habitat degradation/ loss	DFO	All	Since 1990
1.3 Continue to employ monitoring requirements in Lessard et al (2007) protocol for works and development in abalone habitat and critical habitat	All	U	Habitat degradation/ loss, Critical Habitat destruction, Monitoring	DFO Proponent	PCA	Since 2007
2. Protection
2.1 Promote compliance through education	All	U	Harvest Low recruitment	DFO	CCG, FN, PCA	Since 1990
2.2 Monitor and respond to non-compliance	All	U	Harvest Low recruitment	DFO	RCMP, DND, PCA	Since 1990
2.3 Build major cases and special investigations on illegal abalone trade	All	U	Harvest Low recruitment	DFO	RCMP, CFIA, DND, EC, PCA, PROV, TRAFFIC	Since 1990, new efforts in 2010 are ongoing
2.4 Review works and development proposals in abalone habitat and critical habitat	1, 2, 3	U	Low recruitment Habitat degradation/ loss	DFO	PROV Proponent	Ongoing, as required
3. Education & Awareness
3.1 Raise awareness	All	N	Harvest Low recruitment SARA status	HGAbS, KASP, G-N, HASP, MFP, NFP, BMSC, CC & FN, PCA, EC	DFO	Since 2000
3.2 Discourage illegal harvest	All	U	Harvest Low recruitment	DFO	EC, HGAbS, KASP, NFP, MFP, G-N, HASP, BMSC, CC & FN, PCA	DFO since 1990, stewardship efforts since 2000
3.3 Reduce commercial demand of illegal product and target markets	All	N	Harvest Low recruitment	DFO	Restaurants ENGOs	Since 2003
4. Research & Rebuilding
4.1 Disease	All	N	Low recruitment		DFO	Since 2003
4.2 Larval dispersal	All	N	Low recruitment		PCA DFO	Since 2002, again in 2009
4.3 Kinship identification	All	N	Low recruitment	Univ	DFO PCA BHCAP	Since 2002
4.4 Species interactions	3, 4	N	Sea Otters Habitat effects	KASP, HASP, HGAbS, Univ	PCA DFO	Since 2002, new efforts in 2010 ongoing
4.5 Evaluate feasibility and effectiveness of pilot aggregation and translocation projects	All	U	Low recruitment	KASP	HGAbS, MFP, Gitga’at, DFO, EC, PCA	Since 2001 Data analysis in 2010/11
4.6 Evaluate feasibility and effectiveness of pilot out-planting	All	U	Low recruitment Population rebuilding	Univ	BHCAP, Univ, DFO	Outplanting since 2003, surveyed some sites 2000, 2002, 2003 Report expected 2011/12
4.7 Traditional knowledge	All	N	TK, biology, ecology, threats, habitat	FN	AbRIG DFO	2009
4.8 Enhancement to protect early life-stages	All	N	Low recruitment Juvenile Survival	HGAbS, KASP	DFO, EC	Since 2001
4.9 Research on early benthic stages, identify habitat requirements	All	U	Low recruitment Population rebuilding	Ab RIG, HGAbS, Univ	DFO, PCA	Since 2002, new efforts in 2010 ongoing
5. Monitoring
5.1 Index site surveys	1, 3, 4	U	All (Monitoring)	DFO	HGAbS MFP	Since 1978,
North and Central Coasts						2011
Haida Gwaii						2012
5.2 Baseline abundance surveys in southern B.C.	3, 4	U	All (monitoring)	DFO	PCA	Since 2003,
WCVI						2013
QCS						2014
5.3 Survey methodology for juveniles	All	N	Low recruitment	HGAbS, KASP, Univ	DFO, PCA	Since 2002

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¹⁰ This action is subject to review and permitting under SARA (S. 73).

¹¹ This action is subject to review and permitting under SARA (S. 73).

¹² Five biogeographic zones were identified for Northern Abalone in B.C. based on environmental, management and/or biological considerations. These areas include intertidal and subtidal waters surrounding the following land areas: Haida Gwaii; North and Central Coasts (Cape Caution north to and including Prince Rupert); Queen Charlotte and Johnstone Straits (Seymour Narrows near Quadra Island north to Cape Caution); Georgia Basin (San Juan Point to Seymour Narrows near Quadra Island); and West Coast of Vancouver Island (San Juan Point north to the Scott Islands).

¹³ In place of, “Was the coast-wide closure an effective measure contributing in halting the population decline?”

¹⁴ Replaces ‘Was baseline abundance established in each of the biogeographic zones?’ That action has been completed.

¹⁵ Implementation dates may refer to implementation of an improved program rather than a date at which similar activities were started.

¹⁶ Partnerships do not necessarily identify specific actions or subsidiary actions required to complete the recovery activity.

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Action Plan for the Northern Abalone in Canada [Final] 2012: Actions and Performance Measures

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