COMMUNICATIONS BETWEEN NASA AND THE U.S. FISHING INDUSTRY
FINAL REPORTContract NASW 2133U.S. FISHING INDUSTRY PARTICIPATION INNASA'S EARTH RESOURCES SURVEY PROGRAMCOMMUNICATIONS BETWEEN NASAAND THE U.S. FISHINGINDUSTRYPrepared forNational Aeronautics and Space AdministrationEarth Observations ProgramWashington, D.C. 20546Technical MonitorR. A. SummersPrepared byWith Assistance ofEarth Satellite Corporation1771 N Street, N.W.Washington, D.C. 20036Living Marine Resources, Inc.11339 Sorrento Valley RoadSan Diego, California 92121Principal ContributorsEarthSatLMRP.M. Maughan, Project ManagerG.C. BroadheadA.D. MarmelsteinF.G. AlversonK. HechtC.G. Peckham
CONTENTSPageEXECUTIVE SUMMARYI.II. . .iINTRODUCTION1Purpose of Study1Study Methods4Description of Report5Definitions8FINDINGS AND EVALUATION15Organization of the Fishing Complex-Communications in the Fishing ComplexGovernment and Fisheries CommissionsFederal Government CommunicationsInternational Fisheries Commission CommunicationsState Government CommunicationsRegional Fisheries Commission CommunicationsEvaluation of Government and FisheriesCommission CommunicationsU. S. Fishing IndustryMaine Sardine IndustryBackgroundFishing GroundsU. S. ProductionVessels and Gear1518222230343539424949494950Organization of the FisheryProducersProcessorsTrade Associations50515151Relevant Organizations51Communications52Evaluation54New England Groundfish Industry56
CONTENTS (cont.)Atlantic and Gulf Menhaden Industry69Gulf of Mexico Shrimp Industry79U. S. Tuna Industry90California Wetfish Industry105Pacific Northwest Salmon Industry112Alaskan King Crab Industry123Communications MediaIII.\129Background129Published Media130Meetings and Seminars132Evaluation135RECOMMENDATIONS139
FIGURESPage1-1.Principal Components of the U. S. Fishing Complex91-2.Organization of the U. S. Fishing Industry111-3.Principal Components of the Fishing Complex NotIncluded in the U. S. Fishing Industry14II-l.Principal Working Relationships in the Fishing Complex17II-2.Levels and General Types of Communications in theFishing Complex20II-3.Principal Communication Channels Between the NationalMarine Fisheries Service and the U. S. Fishing Industry2611-4.Principal Communication Channels Between the Office ofSea Grant and the U. S. Fishing Industry28II-5.Principal Communication Channels Between the NationalWeather Service and the U. S. Fishing Industry31II-6.Principal Communication Channels Between the StateGovernments and the U. S. Fishing Industry36II-7.Geographic Extent of the Eight Fisheries44II-8.Principal Communication Channels in the Maine SardineIndustry53II-9.Principal Communication Channels in the New EnglandGroundfish Industry6311-10.Principal Communication Channels in the Atlantic andGulf Menhaden Industry76 11-11. Principal Communication Channels in the Gulf ShrimpIndustry8411-12.Principal Communication Channels in the U. S. TunaIndustry10011-13.Principal Communication Channels in the CaliforniaWetfish Industry10911-14. Principal Communication Channels in the Pacific SalmonIndustry11811-15.127Principal Communication Channels in the King Crab Industry
TABLESPageII-l. Principal Components of the Federal Government23Communicating with the U. S. Fishing IndustryII-2.Spotter Aircraft Operating with the Atlantic and72Gulf Menhaden IndustryII-3.National Marine Fisheries Service Publications131Relevant to the U. S. Fishing IndustryII-4. Principal Publications of the Trade Associations133II-5. Principal Monthly Commercial Publications Directedto the U. S. Fishing Industry134II-6. Principal U. S. Meetings Attended by a SignificantNumber of Key People in Each Fishery136
EXECUTIVE SUMMARYThis report presents the results of a NASA-funded research anddevelopment program investigating the applications of remote sensing incommercial fishing. Specifically, this report presents findings andconclusions of a study undertaken by Earth Satellite Corporation (EarthSat),with assistance from Living Marine Resources, Inc. (LMR), regarding communications between NASA and the U. S. fishing industry.The overridingtheme of the material presented emphasizes communication pathways whichwill best serve to transmit information of an educational nature regarding remote sensing techniques and applications.Organization of the Fishing ComplexThe fishing complex includes all industrial, private, university,governmental, and international agencies involved in the commercial harvesting of living marine resources in the United States. Because thisgroup is a diversified aggregation of frequently divergent institutions,the organization of the fishing complex was examined in detail in orderto establish the framework for two-way communications.Within the federal, state, and local government structure, onlythose legislative and executive agencies which interact directly withthe fishing effort in this country are considered as part of the fishingcomplex.There are two dozen such bureaus or programs within the federalgovernment, of which three are especially noteworthy: the NationalMarine Fishery Service, the Office of Sea Grant, and the National WeatherService.In addition to the government agencies, there are five principalinternational, and three regional, fisheries commissions which are closely
associated with the federal and state governments and which are part ofthe fishing complex.The U. S. fishing industry has three principal components:thefisheries, the trade associations, and manufacturing, service, and supportorganizations.The fisheries include all of the functional bodiesinvolved in the hunting, capturing, processing, and distributing of aspecific marine species or assemblage of species.Included in thefisheries are the producers, the processors, and the distributors andmarketers.The trade associations perform a variety of functions, notthe least of which involves serving as an interface between the industryand the various governments and fisheries commissions.The day-to-dayactivities of the fishing industry generally revolve around the producersand the processors. The manufacturing, service, and support componentsupplies all of the various services and supplies necessary to the functioning of the fishing industry.Communications in the Fishing ComplexWe have found three distinct levels of communications in the fishing,complex: Communications regarding long-term considerations withinthe industry, dealing principally with industry policyand regulation. In general, three components of the fishing complex fit into this category: trade associations,governments, and fisheries commissions.0Communications on a day-to-day basis, dealing principallywith the operational aspects of the industry. In general,two components of the fishing complex fit into this category: producers and processors.0Communications on an irregular, as necessary, basis, dealing principally with supportive inputs and product outputsof the industry. In general, two components of the fishingcomplex fit into this category: manufacturing, service,and support organizations and distributors and marketers.
In addition to the distinct levels of communications, we havefound a rather clear-cut distinction in the type of communications withinthe fishing complex.In general, those groups most intimately involvedwith operations within any one fishery tend to favor a type of communication which is rather informal and largely verbal. On the other hand,those groups most removed from the fisheries tend to favor a more formal,written type of communication.The government-to-industry communications are of the written, formal type, whereas the industry-to-government communications are of theoral, informal type. The exception is the communication between thetrade associations and the government and fisheries commissions, wheremore formal communications are generally preferred.Government and Fisheries CommissionsThere are two easily identifiable groups of administrators andscientists within the federal government who deal with the industry:one group communicates infrequently and formally on program and policymatters while the other group communicates frequently and informallyon scientific and technological matters.The latter individualsgenerally are those who have developed professional associates withinthe industry.The federal government agency that has the most contact with theindustry is, of course, the National Marine Fisheries Service (NMFS).However, there is no formal established working level communication linkbetween the NMFS and the industry except through statistical agents, whoregularly contact producers and processors. These statistical agents,in turn, communicate with the principal offices and laboratories ofthe NMFS.Formal communications between the NMFS and the industry tend tom
be confined to long-term -policy considerations with regard to thegeneral direction of the industry.Almost without exception, there is a linear reduction in the frequency of communication as one moves into the operating branch of the industry.For example, vessel captains are only occasionally in contact withNMFS staff members.The exception to the general rule is the individualscientist, the marketing specialist, or the statistical agent on thedock.There is, without question, a high degree of scientific and tech-nical competence within the NMFS, and specialists who are in personalcommunication with individuals in the industry generally have a goodworking relationship with them. This is where the pertinent information about technological advances and innovations tends to be communicated.If the communication must be formalized for one reason or another, communication channels tend to break down.It is premature to judge the Office of Sea Grant (OSG) as a potential communication link between the federal government and the industry,inasmuch as its marine advisory services are just being initiated.However, it is our opinion that the OSG has the potential of being oneof the principal mechanisms for communication on a broad base with theindustry, although this potential may take as many as five years to befully realized.The National Weather Service undoubtedly has the most consistentcommunication link with the fishing industry. Unfortunately, this linkis almost exclusively one-way and, as such, is not readily adaptable tothe present needs of either NASA or the fishing industry with respectto remote sensing information.The international fisheries commissions cannot be considered inthe mainstream of communications between the federal government and theiv
U. S. fishing industry. These commissions are largely supportive intheir efforts, and it is only when individual members of the commissionsparticipate in both government and industry affairs that any directcommunication is effected between the two bodies.At the present time, the coastal states generally do not have effective communications with the local fisheries, except in a regulatoryfunction. Since most states are working actively to correct this situation, it is our opinion that the states should be brought into any educational and operational remote sensing communication links, and that NASAshould make every attempt to work with states in establishing these links.Although the regional (interstate) fisheries commissions are composedof representatives from government and industry in each of the states theyserve, each commissions tends to reflect the interest of its executivesecretary. If the executive secretary wishes to have the commission participate actively in regional fishery affairs, the commission is usuallyactively involved. Due to the structure of the present regional commissions, they would provide only a minor communication link between thegovernment and the industry.U. S. Fishing IndustryThe domestic fishing industry is divided into approximately 30separate fisheries, each of which operates on one or more species.Multiple species fisheries generally concentrate on fishing specieswhich have similar spatial distributions and which are closely relatedeconomically.From this large number of fisheries, we selected eightrepresentative fisheries for detailed analysis: Maine sardine, NewEngland groundfish, Atlantic and Gulf menhaden, Gulf shrimp, Californiawetfish, U. S. tuna. Pacific Northwest salmon, and Alaskan king crab.The lack of comparability between separate parts of the sameindustry is one of the unique features of the U. S. fishing
industry.The communications required to insure satisfactory function-ing of each fishery grew out of a close knit, almost familial, relationship that encompasses individuals fishing or processing a common species.Thus, there was no requirement to establish uniform and more sophisticated communication channels in order to operate effectively.the same situation exists today.EssentiallyTo meaningfully describe communicationsin the U. S. fishing industry, one must consider each fishery separately.For purposes of this "Executive Summary", there are, however, several statements which can be made regarding the few comparable communication channels in the U. S. fishing industry:0The producers and processors are unquestionably the principal operating components of each fishery, and the managementdecisions which are made by these groups affect the entirefishery. The communication links required, on one hand, tocarry out the day-to-day operations and, on the other hand,to insure business growth and expansion are very informal,largely oral, and highly effective. Variations in communications in the operating components tend to be effectivelyincorporated into and, in many cases, to enhance theproducer-to-processor communication pathways. These variations include communication through: spotter aircraft inAtlantic and Gulf menhaden, U. S. tuna, and California wetfish; carrier or tender vessels in Maine sardine and PacificNorthwest salmon; auctions in New England groundfish; and"producers" and fish houses in Gulf shrimp.0The trade associations generally provide the major formal communication link between the operating components (producersand processors) of the fisheries and the federal and stategovernments, as well as international and regional fisheriescommissions. In almost every fishery, we were able to identify major two-way communication pathways through the tradeassociations.0Communications between the manufacturing, service, and supportorganizations and the distributors and marketers and othercomponents of the fishing complex are of little significanceto this study.Communication MediaTwo principal media were analyzed for their potential effectivenessVI
as communication vehicles to the fishing industry:published material,such as trade newspapers and magazines, and regional or national meetingsand seminars, which are attended by representatives of the various groupsin the fishing complex.Although a considerable number of markedly diverse trade newspapersand magazines are published specifically for the fishing industry, theygenerally lack the capability of communicating the type of informationnecessary to provide the industry with a cogent picture of the remotesensing state of the art and NASA plans. The majority of the tradenewspapers and journals are mass-mailed free of charge, and while mostpeople who receive these publications take the time to briefly scanthem, few have the time to regularly read them in depth.None of the regularly attended national meetings draws on a largeenough cross section of the industry to provide an adequate remote sensing information channel to the operating units of the fisheries. Thisis not the case with many of the regional and local association meetings.These latter meetings, coupled with the newsletters published by manyof the same associations, provide perhaps the most favorable communication pathways.RecommendationsHE RECOMMEND THAT NASA FOLLOW A RELATIVELY LOW PROFILE BUT POSITIVEAPPROACH IN INVOLVING THE U. S. FISHING INDUSTRY IN THE ERS PROGRAMThe U. S. fishing industry is, undoubtedly, one of the most likelyuser groups to participate in, and benefit from, the ERS program, oncethe capabilities and applications of remote sensing technology areunderstood by the industry.However, as the U. S. fishing industry is
shown in this report to be unique in many respects, the degree of successattained in involving this industry in the ERS program will be largelydependent on NASA's approach to the industry.It is important, therefore, that NASA continue to approach thefishing industry on the industry's terms and with a relatively low visibility. It may be to the advantage of NASA to operate through an intermediate group familiar with both the fishery and the individuals who makeup the fishery.Further, this group should be cognizant of both thelatest developments in remote sensing (and capable of translating thesedevelopments and their applications into a language acceptable and meaningful to the fishing industry) and the multifaceted problems and datademands of the fishing industry. This approach would be in lieu of NASA's,or another government agency's acting in NASA's behalf, attempting tomake direct contact with the fishing industry. This type of approachseems particularly prudent in view of the prevailing reluctance of theindustry to work with the government or universities.WE RECOMMEND THAT ONE FISHERY BE SELECTED FOR STUDY EMPHASIS LEADINGTO A FRUITFUL PARTICIPATION IN THE ERS PROGRAMOne of the basic problems facing NASA in attempting to draw thefisheries community into the ERS program as a user group is that ofdemonstrating a definitive area in which NASA can contribute to thefishing industry. Although several fisheries are at the point wherethe step to operational utilization of aerial electronic remote sensingis very close, there is, at present, no clear example of the integrateduse of remote sensing (other than subsurface, acoustical techniques) asa data input to either the operational or management aspects of commercial fishing. Many of the individuals in the industry have partialacquaintance with remote sensing; yet, even these individuals, as well asviii
those who have no prior exposure to remote sensing, will very quicklybecome discouraged unless some concrete evidence of the actual returnsfrom a remote sensing comitmentcan be demonstrated.WE RECOMMEND THAT AN EDUCATIONAL PROGRAM BE INITIATED WITH THE U. S.FISHING INDUSTRY TO INFORM THE APPROPRIATE INDIVIDUALS OF REMOTESENSING POTENTIALSAlmost without exception, we found that those individuals with someprior exposure to remote sensing techniques (regardless of how minimal)were generally more convinced of, and more will ing to accept, the potential for remote sensing in commercial fisheries than those individualswho had not had any previous expo.sure and with whom we could not go intovery great detail on the background of remote sensing. These latterindividuals generally showed great skepticism in regard to the potential for applications of remote sensing techniques to any facet ofcommercial fishing. Given the generally accepted potential for remotesensing in fisheries which exists in the remote sensing technical andscientific community,, it seems imperative to reach out to the commercialfishing industry with a program structured to their needs and backgroundsConclusionsIt was our feeling as we entered into this study, a feeling nowconfirmed, that there are two basic statements which can be made aboutthe domestic fishing industry concerning remote sensing:0Many, but not all, fisheries have a need for remotelysensed data in their operational decisions, but0Remotely sensed data will ultimately contribute to predictive modeling provided to the fisheries by various components of the fishing complex.Those fisheries which operate on organisms responding to the distribution of environmental variables at the surface have an obvious
potential for locating these organisms through a knowledge of the distribution of the related surface phenomena.Remote det
The government-to-industry communications are of the written, for-mal type, whereas the industry-to-government communications are of the oral, informal type. The exception is the communication between the trade associations and the government and fisheries commissions, where more formal communications are generally preferred.
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