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Tackling Marine Debris in the 21st Century
TACKLING MARINE DEBRIS IN THE 21ST CENTURY
Committee on the Effectiveness of International and National Measures to Prevent and Reduce Marine Debris and Its Impacts
Ocean Studies Board
Division on Earth and Life Studies
NATIONAL RESEARCH COUNCIL OF THE NATIONAL ACADEMIES
THE NATIONAL ACADEMIES PRESS
Washington, D.C.
www.nap.edu
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Tackling Marine Debris in the 21st Century
THE NATIONAL ACADEMIES PRESS
500 Fifth Street, N.W. Washington, DC 20001
NOTICE: The project that is the subject of this report was approved by the Governing Board of the National Research Council, whose members are drawn from the councils of the National Academy of Sciences, the National Academy of Engineering, and the Institute of Medicine. The members of the committee responsible for the report were chosen for their special competences and with regard for appropriate balance.
This study was supported by Contract No. HSCG23-07-C-MMS158 between the National Academy of Sciences and the Department of Homeland Security. Any opinions, findings, conclusions, or recommendations expressed in this publication are those of the author(s) and do not necessarily reflect the views of the organizations or agencies that provided support for the project.
International Standard Book Number-13: 978-0-309-12697-7
International Standard Book Number-10: 0-309-12697-5
Cover: The front cover background image of debris on a beach was provided by Anthony F. Amos of the University of Texas Marine Science Institute. The image of the brown boobies on derelict fishing gear was provided by Dr. Dwayne Meadows of the National Oceanic and Atmospheric Administration. The images of the entangled Hawaiian monk seal and the entangled sea turtle were provided by the National Oceanic and Atmospheric Administration. The back cover and chapter-opening image of an abandoned fish trap was provided by Wolcott Henry 2005/Marine Photobank.
Additional copies of this report are available from the
National Academies Press,
500 Fifth Street, N.W., Lockbox 285, Washington, DC 20055; (800) 624-6242 or (202) 334-3313 (in the Washington metropolitan area); Internet, http://www.nap.edu.
Copyright 2009 by the National Academy of Sciences. All rights reserved.
Printed in the United States of America
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Tackling Marine Debris in the 21st Century
THE NATIONAL ACADEMIES
Advisers to the Nation on Science, Engineering, and Medicine
The National Academy of Sciences is a private, nonprofit, self-perpetuating society of distinguished scholars engaged in scientific and engineering research, dedicated to the furtherance of science and technology and to their use for the general welfare. Upon the authority of the charter granted to it by the Congress in 1863, the Academy has a mandate that requires it to advise the federal government on scientific and technical matters. Dr. Ralph J. Cicerone is president of the National Academy of Sciences.
The National Academy of Engineering was established in 1964, under the charter of the National Academy of Sciences, as a parallel organization of outstanding engineers. It is autonomous in its administration and in the selection of its members, sharing with the National Academy of Sciences the responsibility for advising the federal government. The National Academy of Engineering also sponsors engineering programs aimed at meeting national needs, encourages education and research, and recognizes the superior achievements of engineers. Dr. Charles M. Vest is president of the National Academy of Engineering.
The Institute of Medicine was established in 1970 by the National Academy of Sciences to secure the services of eminent members of appropriate professions in the examination of policy matters pertaining to the health of the public. The Institute acts under the responsibility given to the National Academy of Sciences by its congressional charter to be an adviser to the federal government and, upon its own initiative, to identify issues of medical care, research, and education. Dr. Harvey V. Fineberg is president of the Institute of Medicine.
The National Research Council was organized by the National Academy of Sciences in 1916 to associate the broad community of science and technology with the Academy’s purposes of furthering knowledge and advising the federal government. Functioning in accordance with general policies determined by the Academy, the Council has become the principal operating agency of both the National Academy of Sciences and the National Academy of Engineering in providing services to the government, the public, and the scientific and engineering communities. The Council is administered jointly by both Academies and the Institute of Medicine. Dr. Ralph J. Cicerone and Dr. Charles M. Vest are chair and vice chair, respectively, of the National Research Council.
www.national-academies.org
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Tackling Marine Debris in the 21st Century
COMMITTEE ON THE EFFECTIVENESS OF INTERNATIONAL AND NATIONAL MEASURES TO PREVENT AND REDUCE MARINE DEBRIS AND ITS IMPACTS
KEITH R. CRIDDLE (Chair),
University of Alaska Fairbanks, Juneau
ANTHONY F. AMOS,
University of Texas, Port Aransas
PAULA CARROLL, U.S. Coast Guard (retired),
Honolulu, Hawaii
JAMES M. COE,
National Oceanic and Atmospheric Administration (retired), Kirkland, Washington
MARY J. DONOHUE,
University of Hawaii Sea Grant College Program, Honolulu
JUDITH H. HARRIS,
Department of Ports and Transportation, City of Portland, Maine
KIHO KIM,
American University, Washington, DC
ANTHONY MACDONALD,
Monmouth University, West Long Branch, New Jersey
KATHY METCALF,
Chamber of Shipping of America, Washington, DC
ALISON RIESER,
University of Hawaii, Honolulu
NINA M. YOUNG,
Consortium for Ocean Leadership, Washington, DC
Staff
SUSAN PARK, Program Officer
JODI BOSTROM, Associate Program Officer
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Tackling Marine Debris in the 21st Century
OCEAN STUDIES BOARD
SHIRLEY A. POMPONI (Chair),
Harbor Branch Oceanographic Institution, Ft. Pierce, Florida
ROBERT G. BEA,
University of California, Berkeley
DONALD F. BOESCH,
University of Maryland Center for Environmental Science, Cambridge
JORGE E. CORREDOR,
University of Puerto Rico, Lajas
KEITH R. CRIDDLE,
University of Alaska Fairbanks, Juneau
MARY (MISSY) H. FEELEY,
ExxonMobil Exploration Company, Houston, Texas
DEBRA HERNANDEZ,
Hernandez and Company, Isle of Palms, South Carolina
ROBERT A. HOLMAN,
Oregon State University, Corvallis
KIHO KIM,
American University, Washington, DC
BARBARA A. KNUTH,
Cornell University, Ithaca, New York
ROBERT A. LAWSON,
Science Applications International Corporation, San Diego, California
GEORGE I. MATSUMOTO,
Monterey Bay Aquarium Research Institute, California
JAY S. PEARLMAN,
The Boeing Company (retired), Port Angeles, Washington
ANDREW A. ROSENBERG,
University of New Hampshire, Durham
DANIEL L. RUDNICK,
Scripps Institution of Oceanography, La Jolla, California
ROBERT J. SERAFIN,
National Center for Atmospheric Research, Boulder, Colorado
ANNE M. TREHU,
Oregon State University, Corvallis
PETER L. TYACK,
Woods Hole Oceanographic Institution, Massachusetts
DAWN J. WRIGHT,
Oregon State University, Corvallis
Staff
SUSAN ROBERTS, Director
CLAUDIA MENGELT, Program Officer
SUSAN PARK, Program Officer
JODI BOSTROM, Associate Program Officer
DEBORAH GLICKSON, Associate Program Officer
SHUBHA BANSKOTA, Financial Associate
PAMELA LEWIS, Administrative Coordinator
HEATHER CHIARELLO, Program Assistant
JEREMY JUSTICE, Program Assistant
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Tackling Marine Debris in the 21st Century
Acknowledgments
This report was greatly enhanced by the participants of the three workshops held as part of this study. The committee would first like to acknowledge the efforts of those who gave presentations at meetings: Holly Bamford (National Oceanic and Atmospheric Administration), Nir Barnea (National Oceanic and Atmospheric Administration), Michael Blair (U.S. Coast Guard), Ginny Broadhurst (Northwest Straits Commission), Steve Collins (Cruise Lines International Association, Inc.), David Condino (U.S. Coast Guard), Charles (Bud) Darr (U.S. Coast Guard), Libby Etrie (U.S. Department of State), David Gravallese (Environmental Protection Agency), Andrew Gude (U.S. Fish and Wildlife Service), Martín Hall (Inter-American Tropical Tuna Commission), David Itano (University of Hawaii at Manoa), Jenna Jambeck (University of New Hampshire), Lindy Johnson (National Oceanic and Atmospheric Administration), Ilse Kiessling (Charles Darwin University), Bob King (Marine Conservation Alliance Foundation), Eric Kingma (West Pacific Regional Fisheries Management Council), Holly Koehler (U.S. Department of State), David Major (U.S. Coast Guard), Rene Mansho (Schnitzer Steel Hawaii Corporation), Thomas Matthews (Florida Fish and Wildlife Conservation Commission), Scott Muller (U.S. Coast Guard), William Nuckols (Coastal America), J. Michael Prince (University-National Oceanographic Laboratory System), David Redford (Environmental Protection Agency), Michael Simpkins (Marine Mammal Commission), Christine Ribic (University of Wisconsin), Seba Sheavly (Sheavly Consultants and The Ocean Conservancy), Rodney Smith (Covanta Energy), Mary Sohlberg (U.S. Coast
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Guard), Heather St. Pierre (U.S. Coast Guard), Dick Stephenson (retired captain of tuna seiner Connie Jean), Paul Stocklin (U.S. Coast Guard), Michael Stone (Fury Group), Lisa Swanson (Matson Navigation Company), Steven Vanderkooy (Gulf States Marine Fisheries Commission), Howard Wiig (State of Hawaii), and Mark Young (U.S. Coast Guard). These talks helped set the stage for fruitful discussions in the closed sessions that followed.
This report has been reviewed in draft form by individuals chosen for their diverse perspectives and technical expertise, in accordance with procedures approved by the National Research Council’s Report Review Committee. The purpose of this independent review is to provide candid and critical comments that will assist the institution in making its published report as sound as possible and to ensure that the report meets institutional standards for objectivity, evidence, and responsiveness to the study charge. The review comments and draft manuscript remain confidential to protect the integrity of the deliberative process. We wish to thank the following individuals for their participation in their review of this report:
Anne D. Aylward, U.S. Department of Transportation, Cambridge, Massachusetts
David Benton, Marine Conservation Alliance, Juneau, Alaska
Lillian C. Borrone, Port Authority of New York and New Jersey (retired), Avon, New Jersey
Russell E. Brainard, National Oceanic and Atmospheric Administration, Honolulu, Hawaii
Ginny Broadhurst, Northwest Straits Commission, Mount Vernon, Washington
Joseph T. DeAlteris, University of Rhode Island, Kingston
David G. Dickman, Venable, LLP, Washington, DC
Martín A. Hall, Inter-American Tropical Tuna Commission, La Jolla, California
Ilse Kiessling, Charles Darwin University, Darwin, Northern Territory, Australia
Judith E. McDowell, Woods Hole Oceanographic Institution, Massachusetts
Andrew A. Rosenberg, University of New Hampshire, Durham
Seba B. Sheavly, Sheavly Consultants, Virginia Beach, Virginia
Although the reviewers listed above have provided many constructive comments and suggestions, they were not asked to endorse the conclusions or recommendations nor did they see the final draft of the report before its release. The review of this report was overseen by Andrew R.
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Solow, Woods Hole Oceanographic Institution, Massachusetts, appointed by the Divison on Earth and Life Studies, and John E. Dowling, Harvard University, Cambridge, Massachusetts, appointed by the Report Review Committee, who were responsible for making certain that an independent examination of this report was carried out in accordance with institutional procedures and that all review comments were carefully considered. Responsibility for the final content of this report rests entirely with the authoring committee and the institution.
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Contents
SUMMARY
1
1
INTRODUCTION
17
Marine Debris Timeline,
20
Study Approach and Statement of Task,
22
Report Organization,
24
2
UNDERSTANDING MARINE DEBRIS AND ITS IMPACTS
27
Abundance and Flux,
28
Impacts,
33
Effective Monitoring and Research,
42
Conclusion,
47
3
MEASURES TO PREVENT AND REDUCE MARINE DEBRIS AND ITS IMPACTS
49
International Legal and Regulatory Framework,
49
Gaps in the International Legal and Regulatory Framework,
59
Domestic Legal, Regulatory, and Management Framework,
64
Gaps in Domestic Regulation and Management,
75
Conclusion,
86
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4
DERELICT FISHING GEAR AND FISH AGGREGATING DEVICES
89
Derelict Fishing Gear,
90
Fish Aggregating Devices,
121
Conclusion,
139
REFERENCES
141
APPENDIXES
A Committee and Staff Biographies
157
B Acronyms
163
C Selected Literature on Quantities and Impacts of Marine Debris
165
D Parties to MARPOL Annex V and Member of Regional Fisheries Management Organizations
189
E Management of Waste and Derelict Fishing Gear
193
