Northwestern Hawaiian Islands Fisheries
About
History of the Fisheries in the Northwestern Hawaiian Islands
500–1500 AD Polynesians migrate to Hawaii. According to legend, the chiefess Pele and her family first land at Mokupapapa, a flat reef-like island, where her brother Kanenilohai is left. The next island is Nihoa, where her brothers Kaneapua and Kamohoalii (the shark god) are left. A study of Nihoa and Moku Manamana (Necker Island) in the 1920s uncovers numerous shrines and a fishhook of the type used with a kaka rig to fish in the kialoa (deep waters) for bottomfish. Carbon-dating indicates the islands were settled about 1000 AD.
1700s–1800s Native Hawaiians from Kauai and Niihau make regular canoe trips to Mokupapapa, an island west of Kaula, for turtles and seabirds. Nihoa is occupied each summer by Native Hawaiians until the late 1800s. Olona fiber fishing lines of 300-foot length suggest bottomfish fishing took place as several of the lines could be tied together.
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Scientific & Economic Value
The NWHI accounts for two-thirds of the U.S. EEZ around Hawaii and 83% of its coral reef habitat. The region has been productive fishing grounds for Hawaii’s fishers since pre-contact with Western societies. Commercial fishing occurred there as early as 1917.
The sustainable NWHI bottomfish fishery harvested healthy stocks of red and pink snappers. These fish are featured dishes in the Hawaii regional cuisine, which local restaurants cater to tourists and residents. These red fish hold special significance to the people of Hawaii, particularly at New Years. When open to commerce, nearly half of the bottomfish and most of the lobster that was commercially harvested annually in Hawaii came from the NWHI (annual landed values from the NWHI were ~$1 million and ~$1.2 million, respectively). The 2006 designation of Papahanaumokuakea Marine National Monument phased out commercial fishing in the region. For more details, see “The Unintended Consequences,” a Council presentation for Washington, D.C. officials that provides an analysis of fishery impacts.
Research to assess NWHI resources was initiated in the late 1970s as part of a Tripartite Cooperative Agreement between the National Marine Fisheries Service (NMFS), the U.S. Fish and Wildlife Service and the Hawaii Division of Aquatic Resources. This agreement concluded in the early 1980s, but not before several symposia were held to exchange research results and ideas. Key management products of the first two symposia were fishery management plans for bottomfish, crustaceans and precious corals. Another valuable product of these investigations was a first of its kind Fishery Atlas of the NWHI (1986).
Members of the Council’s Scientific and Statistical Committee contributed to continued research and understanding of the NWHI. View a collection of published papers (2006).
The NWHI hosts a diversity of protected species, including Hawaiian green sea turtles and monk seals, and seabirds. The Council implemented management measures starting in the 1980s to minimize fishery impacts to protected species. These measures include trap gear design specifications and a net prohibition for the lobster fishery, a drift gillnet ban, federal observer programs in the NWHI bottomfish and Hawaii longline fisheries, and a 50-nautical-mile protected species zone around the NWHI that prohibited longline fishing in 1991.
Pelagic fisheries targeting tuna and swordfish that historically utilized the U.S. EEZ around the NWHI are valued between $100 to $115 million per year. Most of these operated seaward from 50 nautical miles (nm). A 2020 study by scientists at NMFS found that prohibitions in fishing seaward from 50 nm (expansion of the Papahanaumokuakea Marine National Monument) reduced fishery performance of longline vessels that had used these waters by 7% and revenues by 9%, with economic losses of $3.5 million in months following this prohibition [Chan 2020].
- Chan, Hing Ling. “Economic impacts of Papahānaumokuākea Marine National Monument expansion on the Hawaii longline fishery.” Marine Policy. 14 Feb. 2020.
- Protected Species Conservation Monograph, 2016
- For more information, see the following pages on the Council website: Protected Species, Bottomfish Fishery Management Plan, Coral Reef Ecosystem Fishery Management Plan, and Area-Based Management Tools.
Cultural Importance
The Northwestern Hawaiian Islands (NWHI) are often cited as the first place that Pele and her family landed in Hawaii. Everywhere she goes, she is pursued by her sister, Namakaokahai, and forced to flee until eventually settling on Hawaii Island, her current residence. These traditions recount the geological formation of the islands and in order of the hotspot prior to modern science identifying these phenomena. It also provides the migration route for Polynesians that came to Hawaii. Carbon dating of artifacts left in the NWHI confirms settlement at about 1000 AD. Mokumanamana and Nihoa were the focus of ritual use and human occupation continually from 1400 to 1815 AD, with intermittent use well into the 19th century.
Much of the information about the cultural importance of the NWHI is recorded in oral histories and genealogies that note the continual use of the islands by the people of Hawaii. Regular trips by canoe were made to the NWHI for fishing, sea turtles, and seabirds up until the 1800s. Upon arrival of western sailing ships that exploited the area, the alii recognized the importance of the NWHI with the Queens and Kings politically annexing the islands into the Kingdom.
Today, the cultural importance is being rediscovered as archeological and ethnological research have identified important areas for traditional navigation, resource collection, and use of the islands. For more on the cultural significance of the NWHI, see the Office of Hawaiian Affairs website.
Here are examples of how native Hawaiian culture and traditions are being reincorporated into management and governance in Hawaii.
- Aha Moku – Beginning in August 2006, the Council hosted the Puwalu series to engage the Hawaiian community to bring native practitioners from across the 43 moku (regions) together to discuss traditional practices and advise the Council’s Hawaii Archipelago Fishery Ecosystem Plan. Through the combined efforts of more than 100 kupuna and Native Hawaiian resource practitioners in the State of Hawaii, Governors Lingle and Abercrombie signed Act 212 and 288 into law in 2007 and 2012, respectively. These Acts initiated the process to instill best practices upon indigenous resource management of moku boundaries and established the Aha Moku Advisory Committee.
- Office of Hawaiian Affairs Mai Ka Po Mai, 2021 – Mai Ka Po Mai is a culmination of more than 10 years of discussions with the Native Hawaiian community and the managing agencies to provide a Native Hawaiian perspective into Papahānaumokuākea management. The guidance document uses traditional concepts and cultural traditions related to Papahānaumokuākea in its structure to set a foundation for how management should be conducted.
Northwestern Hawaiian Islands Proposed Sanctuary Fishery Regulations FAQs
Why is a Sanctuary being proposed now?
The Office of National Marine Sanctuaries (ONMS) has long desired a National Marine Sanctuary for the NWHI (https://www.papahanaumokuakea.gov/sanctuary-designation). A previous attempt in 2000 that was directed by President Clinton was eclipsed by the last-minute designation of a Marine National Monument by President Bush in 2006 under the authority of the Antiquities Act. Given the recent example of Presidents altering existing monuments through the Antiquities Act, there is a desire to create more permanence in the region and there has been a recent push to designate the sanctuary through direction provided by President Obama’s Presidential Proclamation 9478 that designated the Monument Expansion Area as well as a provision put into the 2021 Appropriations Bill to designate the NWHI as a National Marine Sanctuary.
Which boundary options are ONMS considering?
It is unclear at this time. The Council understands that the sanctuary designation process, which includes an Environmental Impact Statement analysis to satisfy the National Environmental Protection Act and formal public scoping, will examine boundary options.
What is the role of the Council?
Under the National Marine Sanctuaries Act section 304(a)(5), ONMS works with the Council to assess and determine the need for fishery regulations to meet the goals and objectives of the sanctuary. The Council can either recommend fishing regulations, recommend that fishing regulations are not necessary, or decline to act. The Secretary of Commerce may develop fishing regulations in the event that the Council proposes regulations that do not meet the goals and objectives of the sanctuary, refuses to recommend regulations, or fails to act in a timely manner.
What does that mean for fishing in the NWHI?
The Council initially placed a protected species zone in the NWHI that prohibited longline fishing within 50 miles. Also in place in that area were fishery regulations for lobsters, precious corals, and bottomfish that were put into place in the 1980s. In 2000, a Coral Reef Ecosystem Reserve was placed over that same area that prohibited fishing on coral reef fisheries as well. The establishment of the Papahānaumokuākea Marine National Monument phased out fishing in the 0-50 mile zone and currently only subsistence/sustenance fishing is allowed. In the area outside of 50 miles to the 200 mile extent of the US Exclusive Economic Zone (the Monument Expansion Area , or MEA), commercial fishing is prohibited by Presidential Proclamation 9478 but non-commercial fishing and Native Hawaiian subsistence fishing can be allowed as a regulated activity. This is the fishing that the Council has provided recommendations on for fishing regulations in the MEA.
Does the Council see this as a way to reopen the NWHI to commercial fishing?
Commercial fishing is prohibited in the NWHI. The Council will continue to look for ways to support non-commercial and subsistence fishing, remaining consistent with the proclamations.
Can fish come home to the Main Hawaiian Islands?
The Council has evaluated options for permitting the limited, non-commercial use of fish harvested within certain areas of the monuments, which may include the transport, consumption and sharing of fish outside the monument.
NOAA Request for Comments on Proposed Sanctuary designation
The National Oceanic and Atmospheric Administration (NOAA), in cooperation with the U.S. Fish and Wildlife Service (USFWS), the State of Hawai’i, and the Office of Hawaiian Affairs (OHA), is initiating the process to consider designating marine portions of Papahānaumokuākea Marine National Monument as a national marine sanctuary.
NOAA requested comments on the following topics. Click here to see the list of public comments.
The proposed designation of marine waters of the Monument as a national marine sanctuary, including the spatial extent of the proposed sanctuary and boundary alternatives NOAA should consider:
- the location, nature, and value of resources that would be protected by a sanctuary;
- management measures for the sanctuary and any additional regulations that should be added under the NMSA authority to protect Monument resources;
- the potential socioeconomic, cultural, and biological impacts of sanctuary designation;
- information regarding historic properties in the entire Monument area and the potential effects to those historic properties to support National Historic Preservation Act compliance under section 106; and
- other information relevant to the designation and management of a national marine sanctuary.
At the March 2022 meeting, the Council decided that draft fishery regulations will be necessary as part of the proposed sanctuary designation.
For additional information, please visit the proposed sanctuary’s website.
Public Meetings on NWHI Monument Expansion Area Fishing Regulations held in November 2022
Meeting Agenda
Federal Register Notice
Background paper on NWHI MEA Fishing Regulations
Meeting Flyer
Final Summary Report of NWHI Fishing Regulation Public Informational Meetings