There are several different types of DAPs:  IFQs allow eligible entities, such as vessel owners or fishermen, to catch  a specified portion of the total catch allowed. Current Stakeholder Participation Practices Do Not Fully Adhere to Core Participation Principles

Our review of the participation literature and policies from leading federal  agencies in stakeholder participation identified the following core  principles for effective stakeholder participation, some of which may  overlap when put into practice:  using an open and clearly defined decision-making process;   making key information readily available and understandable;  actively conducting outreach and soliciting stakeholder input;  involving stakeholders early and throughout the decision-making   fostering responsive, interactive communication between stakeholders   using formal and informal participation methods; and  including all stakeholder interests. While all the  councils we reviewed make key information on DAP program  development readily available to stakeholders, this technical  information is not always presented in an easily understandable way. According  to participation experts, serial testimony is not an effective way to  communicate, because it does not lead to a dialogue between  stakeholders and decision makers. NMFS is not legally required to develop a formal policy on stakeholder  participation or provide the councils with guidance and training on how to  develop and implement a participation framework, and it has not done so. Moreover, the councils themselves have not developed strategic  approaches that define their specific participation goals or include  participation plans, and therefore may be missing opportunities to make  stakeholder participation in the DAP process more effective. These methods generally fall  into five categories: (1) providing education and outreach, (2) holding  meetings in different ways, (3) streamlining the DAP program development  process, (4) diversifying interests represented in the council process, and  (5) sharing decision-making authority. While strategic use of these methods  can result in more effective participation, they can also have disadvantages,  such as increased costs. Stakeholders identified the Marine Resource Education Project  (MREP), which is sponsored by a group of universities in New England,  as an example of a good training program. MREP provides stakeholders  with intensive training on fisheries management and science to help  them better understand the council process and DAP issues, teaches the  importance of being involved early and throughout the process, and  provides diverse stakeholders with the opportunity to exchange  information in informal settings. However, such training can be costly  and may reach relatively few stakeholders. Hold meetings at different times or locations. Streamlining the DAP program development process. Stakeholders have suggested that NMFS streamline the process for  developing fishery management plans, such as DAP programs. Recommendations for Executive Action

To enhance stakeholder participation in the development of DAP programs,  we are recommending that the Secretary of Commerce direct the  Administrator of NOAA to direct the Director of NMFS to:   establish a formal policy for stakeholder participation, including  adopting a set of core principles to guide stakeholder participation  activities;   provide guidance to the councils and train NMFS staff, council  members, and council staff on developing and using a strategic  approach to stakeholder participation; and  ensure that the councils develop and implement a framework for  stakeholder participation that includes core principles and a strategic  approach. For this report, we reviewed the development  of domestic DAP programs to determine (1) the extent to which the  regional fishery management councils are using a framework for effective  stakeholder participation and (2) the methods stakeholders and  participation experts suggest for enhancing stakeholder participation in the  development of DAP programs.
Why GAO Did This Study

Dedicated access privilege (DAP) programs are one tool the National Marine Fisheries Service (NMFS) uses to help end overfishing and promote conservation. Under a DAP program, NMFS sets an allowable catch in a fishery and allocates the privilege to harvest a portion of the total to eligible entities, such as fishermen. Because DAP programs can have significant impacts on fishermen and their communities, many believe that effective participation by fishermen and other stakeholders in the development of these programs is critical. GAO was asked to determine (1) the extent to which the regional fishery management councils are using a framework for effective participation and (2) the methods stakeholders and participation experts suggest for enhancing stakeholder participation in developing DAP programs.

What GAO Found

The fishery management councils that GAO reviewed lack key elements of an effective stakeholder participation framework and therefore may be missing opportunities for all stakeholders to participate in the DAP program development process. Based on GAO's review of the literature and the experience of leading federal agencies in stakeholder participation, such a framework should include a strategic implementation approach that embodies a set of core principles, such as making key information readily available and understandable and fostering responsive, interactive communication between stakeholders and decision makers. However, fisheries stakeholders identified several areas where council practices do not fully adhere to the core principles GAO identified. For example, while the councils make DAP-related information available to stakeholders, this information is not always presented in an easily understandable way. Also, while stakeholders can testify at council meetings, according to participation experts, this one-way communication is not an effective way to share information because it does not lead to a dialogue between stakeholders and decision makers. Unlike other federal agencies, NMFS has neither developed a formal stakeholder participation policy nor provided the councils with guidance or training on how to develop and use a strategic approach to enhance stakeholder participation. While not legally required to do so, if NMFS adopted such an approach it could help ensure, among other things, that all relevant stakeholders are identified, specific participation goals are defined, and participation plans are implemented by the councils developing DAP programs. Methods suggested by stakeholders and participation experts that could enhance stakeholder participation in the DAP program development process principally fall into five categories: (1) providing education and outreach; (2) holding meetings using different times, locations, and formats; (3) streamlining the DAP program development process; (4) diversifying interests represented in the council process; and (5) sharing decision-making authority. While using these methods can result in more effective participation, particularly when they are employed as part of a participation plan, these methods can also have certain disadvantages, such as increased costs. For example, the Marine Resource Education Project (MREP), which is sponsored by a group of universities in New England, offers several examples of promising practices. MREP provides stakeholders with training on fisheries management and science to help them better understand the council process and DAP issues, teaches the importance of being involved early and throughout the process, and provides diverse stakeholders with the opportunity to exchange information in informal settings. However, such training can be costly and may reach relatively few stakeholders.