ATLANTIC SWORDFISH OVERVIEW  

Swordfish are large, highly migratory predators distributed throughout the world's marine ecosystem. They generally migrate between colder waters in the summer to warmer waters in the winter for spawning. In the Atlantic Ocean, swordfish range from Canada to Argentina in the west, and from Ireland to South Africa in the east. Swordfish are also found in the Indian and Pacific Oceans.

Because these fish cross international boundaries, international cooperation is critical to achieve effective swordfish management. The body responsible for the multilateral coordination of Atlantic swordfish management is the International Commission for the Conservation of Atlantic Tunas (ICCAT). In recent years, the Pacific and Indian Ocean fishing nations harvesting highly migratory species including swordfish have become increasingly aware that international structures similar to ICCAT are needed for these areas. Preliminary discussions between many of the nations have taken place.
 
The countries that have the highest swordfish catches in the North Atlantic are Spain, the United States, Canada, Portugal and Japan. In the South Atlantic, Brazil, Japan, Spain, Taiwan and Uruguay dominate the swordfish fisheries. In 1995, approximately 50 percent of the world's total swordfish catch came from the Atlantic Ocean, with the Indian Ocean producing 15 percent and the Pacific Ocean 35 percent of the total. According to the ICCAT Standing Committee on Research and Statistics reviewing ICCAT data, swordfish stocks in the North Atlantic are considered overfished, while the Mediterranean Sea and South Atlantic may be overfished (data are incomplete). Overfishing of the North Atlantic swordfish stocks has been a major factor in the decline of the U.S. harpoon and recreational swordfish fisheries. Swordfish stocks in the Pacific Ocean are considered almost fully fished, while there is incomplete information regarding Indian Ocean stocks.
 
ICCAT has recognized the decline of North Atlantic swordfish. Largely due to the urging of the United States, with the support of various constituencies including the conservation community and the American swordfish industry, ICCAT has adopted various actions to address the swordfish decline over the last few years. In 1994, ICCAT established country specific quotas designed to reduce catches as a first step in implementing measures to arrest the decline of North Atlantic swordfish. The 1996 ICCAT stock assessment indicated that harvest levels increased despite the establishment of these quotas, and ICCAT scientists concluded that catch levels set below the current replacement yield (11,360 mt) should, with adequate compliance, arrest the decline in swordfish overfishing. A 1999 swordfish stock assessment will provide the latest estimates of swordfish abundance and trends, for ICCAT members to use at the November 1999 meeting to determine the effectiveness of recent management actions and to develop appropriate additional measures.

Increases in harvest levels are a result of non-compliance by some foreign fishing nations that include ICCAT members and non-members. In response, the United States has led the ICCAT Commission in adopting new, comprehensive compliance requirements. ICCAT's compliance program requires scrutiny of member nation adherence with ICCAT swordfish quotas and minimum sizes. ICCAT swordfish compliance measures provide for the use of penalties and trade measures for non conformance. Non-members can also be subject to multilateral trade measures if their vessels do not adhere to ICCAT rules.

U.S. swordfish fishermen have maintained a sound record of compliance with ICCAT's management program. Approximately 95 percent of swordfish harvested by U.S. fishermen in the Atlantic are caught on longline gear. Since 1994, U.S. swordfish fishermen have seen U.S. quota reductions of 30 percent. In addition, fishermen are required to obtain permits and report their catches, and are subject to certain gear restrictions. NMFS also has proposed a limited entry program to reduce over-capitalization of the U.S. swordfish fleet.

Domestic swordfish management actions administered by the National Marine Fisheries Service (NMFS) are guided by regulations under the Atlantic Tunas Convention Act and the Magnuson-Stevens Fishery Conservation and Management Act (Magnuson-Stevens Act). The Magnuson-Stevens Act requires NMFS to evaluate all U.S. fisheries and determine their status. Since North Atlantic swordfish have been identified as overfished under the Magnuson-Stevens Act, a domestic rebuilding plan must be developed by September 30, 1998.

As a significant harvester and consumer of Atlantic swordfish, the United States is concerned with both the long-term sustainability of swordfish stocks and ensuring that internationally set swordfish quotas and minimum size requirements are met. The United States is working with the international fishing community to enforce strict swordfish quota adherence and is seeking to improve monitoring of swordfish imports into U.S. markets.
 

FACTS ABOUT ATLANTIC SWORDFISH  

Biology and Stock Status

• Swordfish are highly migratory fish and are harvested worldwide from tropical, subtropical and temperate seas.
   
• The most recent (1996) scientific information indicates that the North Atlantic swordfish stock is overfished, at 58% of the level of the largest annual yield that could be continuously sustained (maximum sustainable yield). The South Atlantic swordfish stock may be overfished (data not conclusive). Preliminary analysis has indicated that current levels of harvest in the South Atlantic are not sustainable. Atlantic swordfish are not an "endangered" species.
   
• The amount of North Atlantic swordfish harvest that would sustain current yield levels (replacement yield) was estimated for 1996 by International Commission for the Conservation of Atlantic Tunas (ICCAT) scientists to be 11,360 metric tons (mt). Scientists concluded at that time that future catches below this level should result in stabilization of the stock. The 1996 North Atlantic catch was 14,736 mt.

International Management of Atlantic Swordfish

• Management of Atlantic swordfish is coordinated by ICCAT, an international organization consisting of 22 member nations.

• North Atlantic swordfish alone are harvested by over 30 countries. Under ICCAT, the U.S. share of the total North Atlantic swordfish quota is 29%, Spain 41%, Canada 10%, Portugal 7.5%, and Japan 6.25%.

• The U.S. delegation to ICCAT has consistently been a leader in encouraging international conservation and management measures aimed at stabilizing and restoring North Atlantic swordfish.
   
• While adherence with ICCAT decisions by some countries has been poor in the past, the United States championed historic ICCAT agreements that provide enforcement tools ensuring adherence by both member and non-member countries. Those new tools include swordfish quota penalties and trade measures. Minimum size requirements and quotas have been the primary management tools used to enforce ICCAT agreements.

• In 1996, ICCAT established total North Atlantic swordfish quotas for 1997-1999. The 1997 quota was set at 11,300 mt, the approximate level of replacement yield. The 1998 quota was reduced to 11,000 mt, and the 1999 quota was reduced to 10,700 mt. At that time, ICCAT scientists estimated that the North Atlantic swordfish stock would recover in thirteen years if landings were reduced to 8,000 mt.

• ICCAT will conduct a new stock assessment in 1999, and new management recommendations will be considered. It is anticipated that ICCAT will continue making progress towards rebuilding Atlantic swordfish at that time.
   

Domestic Management of Atlantic Swordfish

• The Atlantic Tunas Convention Act (ATCA) authorizes domestic implementation of ICCAT- adopted management measures, and it provides that no U.S. regulation may have the effect of either increasing or decreasing the quota or fishing mortality level adopted by ICCAT.

• The National Marine Fisheries Service (NMFS) requires additional domestic regulations for U.S. fishermen that include permitting and reporting, gear restrictions, and is proposing a limited entry program to reduce over-capitalization. These domestic regulations ensure continued U.S. compliance with ICCAT decisions.

• The U.S. swordfishing industry, the sportfishing industry, the environmental community and the public at large all have the opportunity to provide input in the development of international and domestic rules governing swordfish management.

• Per the Magnuson-Stevens Fishery Conservation and Management Act, NMFS has reviewed the status of U.S. fisheries and has identified North Atlantic swordfish as overfished. NMFS is working with an Advisory Panel to design a domestic rebuilding plan by September 30, 1998.
   

Domestic Consumption of Swordfish

• The United States is a primary importer of swordfish, importing approximately 15,600 mt in 1997 from international fishers from many of the world's oceans.

• The United States is seeking to improve monitoring of swordfish into U.S. markets. Fishery managers, the conservation community, and domestic fishermen are all concerned about imports of undersized fish and quota compliance.