Federal Fisheries Management: Efforts to Reduce and Monitor Unintentional Catch and Harm Need Better Tracking
Fast Facts
The National Marine Fisheries Service tries to minimize bycatch—marine life unintentionally caught or harmed by fishing. Fisheries observers deploy on fishing vessels to count bycatch and NMFS uses this data to make bycatch estimates.
But the percentage of fishing trips with observers varies, and estimates are less reliable for fisheries with fewer observers. For instance, only 2% of the fishing trips in the Gulf of Mexico shrimp trawl fishery have an observer.
NMFS said that it needs more funding to recruit and retain observers, but it hasn't communicated those resource needs to Congress.
We recommended, among other things, that it do so.
Shrimp Trawl in the Gulf of Mexico
Highlights
What GAO Found
Bycatch is fish and other marine species that are unintentionally caught or harmed by fishing activities. Fishers try to reduce bycatch with measures that are highly individualized due to the unique interactions among the fish species they are trying to catch, bycatch species, and fishing gear. Such measures can include fishing gear modifications and fishing area closures.
Data on bycatch are primarily collected by fisheries observers, who deploy on fishing vessels to count or weigh bycatch. The percentage of fishing trips carrying observers varies widely by fishery, from zero to 100 percent. National Marine Fisheries Service (NMFS) officials reported that differences in observer funding can drive this variation, and that limited funding for observer coverage complicates bycatch data collection in some fisheries, as discussed below. They also reported challenges with recruiting and retaining observers.
The process for developing bycatch estimates varies across fisheries. It generally involves extrapolating data from a subset of fishing trips with observers to generate bycatch estimates for a whole fishery. GAO found that developing estimates is more complicated and less reliable for fisheries with fewer observers and more limited data. NMFS and Regional Fishery Management Council officials said they use estimates to inform their management decisions. NMFS, however, has not gathered information from all regions on the resources they need to support observer programs, or communicated this information externally to stakeholders, such as Congress. By doing so, NMFS could ensure that stakeholders are more informed when making resource decisions.
Shark Bycatch and Fisheries Observers Working aboard a Fishing Vessel
NMFS' efforts to track its performance in reducing and monitoring bycatch do not align with key elements of evidence-based policymaking related to performance management. Specifically, the agency's bycatch reduction implementation plan lacks measurable performance goals. Having an updated plan with measurable goals and a tracking process could help inform agency decision-making. Additionally, NMFS has enhanced its database to compile bycatch estimates but does not have a comprehensive written plan for how it will report the estimates. Developing such a plan could help the agency better monitor bycatch levels, trends, and information gaps, and demonstrate progress over time to internal and external stakeholders.
Why GAO Did This Study
Bycatch is a complex issue that can threaten the sustainability of fishing communities and ocean ecosystems. Under the Magnuson-Stevens Fishery Conservation and Management Act, NMFS and the councils are to develop conservation and management measures that, among other things, aim to minimize bycatch and bycatch mortality “to the extent practicable.”
GAO was asked to review efforts to manage bycatch. This report addresses (1) measures used to reduce bycatch, (2) coverage and funding of fisheries observers, (3) how bycatch estimates are developed and reported, and (4) how NMFS tracks its performance towards reducing and monitoring bycatch.
GAO reviewed relevant laws and NMFS policies and documents. GAO interviewed NMFS and council officials and relevant stakeholders, including representatives from the fishing industry and academia. GAO selected five fisheries for a more in-depth review. These fisheries reflect a range of geographic regions, fishing gear types, and key bycatch concerns.
Recommendations
GAO is making four recommendations, including that NMFS identify and communicate resource needs from across the regions to support fisheries observers; update its bycatch reduction implementation plan with measurable performance goals for reducing and monitoring bycatch, and a process for tracking progress; and develop a plan for reporting on bycatch estimates from its enhanced database. The agency agreed with GAO's recommendations.
Recommendations for Executive Action
| Agency Affected | Recommendation | Status |
|---|---|---|
| National Marine Fisheries Service | The Assistant Administrator for NMFS should gather information from across the regions to identify any additional resources needed to support fisheries observers, and communicate these needs to relevant stakeholders, including Congress. (Recommendation 1) |
The agency agreed with this recommendation. As of March 2026, NMFS provided GAO with an action plan outlining future actions to address the recommendation. According to this plan, NMFS will identify resources needed to meet regulatory required monitoring requirements. NMFS indicated the agency would identify these resources by the end of FY2026. NMFS indicated that this deadline should allow sufficient time for research and review of sampling design and methods of monitoring efforts, as well as incorporation of new monitoring tools and technologies GAO will continue to monitor the actions NMFS takes in response to this recommendation.
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| National Marine Fisheries Service | The Assistant Administrator for NMFS should develop an updated National Bycatch Reduction Strategy Implementation Plan with measurable performance goals tied to specific time frames. (Recommendation 2) |
The agency agreed with this recommendation. As of March 2026, NMFS provided GAO with an action plan outlining future actions to address the recommendation. According to this plan, NMFS is initiating an update to the National Standard 9 regulatory guidelines, as well as updates to National Standards 4 and 8. The agency anticipated that these updates would have implications to any future National Bycatch Reduction Strategy Implementation Plan. Following the conclusion of the regulatory process and in conjunction with the development of the next 5-year National Bycatch Reduction Strategy Implementation Plan, NMFS plans to develop measurable goals with specific timeframes to apply to the next iteration of the Implementation Plan, as resources allow. NMFS estimated the regulatory process to conclude at some point in 2026. GAO will continue to monitor the actions NMFS takes in response to this recommendation.
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| National Marine Fisheries Service | The Assistant Administrator for NMFS should develop a process for tracking progress toward the performance goals in the updated National Bycatch Reduction Strategy Implementation Plan and use the information to guide agency decision-making. (Recommendation 3) |
The agency agreed with this recommendation. As of March 2026, NMFS provided GAO with an action plan outlining future actions to address the recommendation. According to this plan, in conjunction with the development of the next 5-year National Bycatch Reduction Strategy Implementation Plan, NMFS will begin the development of a draft standard operating procedure for annual tracking and reporting on progress. The agency estimates a draft standard operating procedure to be completed by the end of calendar year 2026.. When we receive addition information on the recommendation, we will update its status.
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| National Marine Fisheries Service | The Assistant Administrator for NMFS should develop a comprehensive written plan for reporting on bycatch estimates from the enhanced Fisheries One Stop Shop database, including how the agency will communicate over time on bycatch levels, trends, and information gaps. (Recommendation 4) |
In December 2024, NMFS released a technical memorandum providing new guidance on developing bycatch estimates - Bycatch Estimation Methodologies Used for the U.S. National Bycatch Report Database. In January 2026, NMFS reported the agency was transitioning to a new database, the Bycatch Data Reporting from Observer Programs (Bycatch DROP) database, which will be housed within the Fisheries One Stop Shop platform. We reviewed the information on the new database, as well as the guidance in the December 2024 technical memorandum. Taken together, we believe they provide a comprehensive written plan for how NMFS will more fully and reliably report on bycatch information going forward and will allow NMFS to publish online updates on, among other things, bycatch levels, trends, and information gaps. NMFS indicated the agency would publish these updates annually in the future. Based on these actions, we believe the agency has met the intent of this recommendation and we are closing it as implemented.
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