The FAD Management Options Intersessional Working Group. Formed in 2014, its purpose is to improve how fish aggregating devices (FADs) are managed in the Western and Central Pacific Ocean. In simple terms, this working group explores and recommends ways to regulate the use of FADs – such as limiting how many are deployed, improving their design to be less harmful, and tracking their movements – in order to mitigate the downsides of these devices. By tackling the FAD issue through science-based policies and cooperation, the group aims to support the WCPFC’s mission of sustainable and responsible fisheries management.
Background and Purpose
Throughout the 2000s and early 2010s, the use of drifting FADs in purse-seine tuna fisheries grew rapidly. WCPFC had taken some initial steps – for example, starting in 2008 it instituted a seasonal FAD fishing closure and required member nations to develop FAD Management Plans. However, these efforts were somewhat fragmented and limited in scope. As purse-seine fleets continued to deploy thousands of FADs annually (to boost catches of skipjack tuna especially), concerns mounted about the impacts on tuna stocks (notably the overfished bigeye tuna) and on the broader ecosystem. By 2014, it was evident that a more coordinated, comprehensive strategy was needed. At its 11th Regular Session (2014), the Commission agreed to form the FAD Management Options Intersessional Working Group (often abbreviated as FADMO-IWG). The group’s formal mandate was to review available information on FADs and provide recommendations on a range of FAD-related issues – including the collection of better FAD data, schemes for FAD marking and tracking, options for limiting or regulating FAD usage, and guidance on FAD designs that could be applied across the region. In other words, the working group was tasked with figuring out how WCPFC members could collectively address the “FAD problem” in order to better achieve the Convention’s conservation objectives.
The FADMO-IWG is open to all WCPFC members, participating territories, and observers (which include industry groups like the tuna fishing industry, and environmental NGOs). Like other intersessional groups, it operates between the Commission’s annual meetings, mostly via correspondence (email discussions, virtual meetings) and occasional in-person sessions timed alongside other WCPFC meetings. The WCPFC Secretariat supports the group with analysis and logistical coordination, and the Scientific Committee (SPC, the science provider) and Technical & Compliance Committee are closely involved by providing data, research, and technical advice. From the outset, the working group has emphasized collaboration – drawing on expertise from regional organizations and considering measures adopted in other oceans – and has been mindful of the needs of small island developing states. Many Pacific Island members have limited resources, so any new FAD rules or technologies need to be feasible and not unduly burdensome. The inclusive, consensus-building nature of the IWG is meant to ensure that all stakeholders learn from each other’s experiences (for instance, sharing results of national FAD pilot projects) and that any recommended solutions are practical for the diverse range of WCPFC members.
Why Manage FADs?
Fish Aggregating Devices – usually floating rafts or buoys that attract fish – have become a double-edged sword in tuna fishing. They greatly improve fishing efficiency, but also bring ecological challenges. The FAD Management Options IWG is focused on finding ways to maximize the benefits of FADs while minimizing their negative impacts. Here are the key considerations:
- What are FADs and why do fishers use them? Drifting FADs are man-made floating objects (often bamboo or synthetic rafts with streamers) equipped with satellite buoys so they can be tracked. Tuna, especially skipjack, instinctively gather under floating objects in the open ocean. By deploying FADs, fishing vessels can dramatically increase their catch rates, saving time and fuel searching for fish. FADs have become integral to the purse-seine fishery – in a typical year, many thousands of FADs might be afloat in the WCPO, helping maintain high catches that supply global tuna markets. In short, FADs are popular because they make fishing more efficient and productive.
- Problems caused by FADs and the need for management: The same devices that make fishing easier also introduce several conservation problems. First, FAD sets tend to catch high numbers of juvenile yellowfin and bigeye tuna that mingle beneath the rafts; these young fish would contribute more to the population if allowed to grow, so catching too many of them on FADs can undermine efforts to sustain those stocks (bigeye tuna, in particular, has been a stock of concern). Second, FAD-associated fishing increases bycatch of non-target species – for example, silky sharks and other fish are frequently caught incidentally in purse seine nets under FADs. Traditional FAD designs often used mesh netting in their underwater appendages, which can entangle sharks, turtles, or other wildlife even when the FAD is not being actively fished. Additionally, the sheer number of drifting FADs has raised alarms about marine debris: many FADs end up lost at sea or stranded on coral reefs and coastlines, where they can cause environmental damage. Without oversight, FADs can also complicate compliance – tracking how many each vessel deploys or where they go is challenging. All these issues highlighted the need for coordinated FAD management. By managing FAD use – through limits, better designs, and tracking – WCPFC aims to reduce the catch of juvenile tuna, lower bycatch and entanglement of sensitive species, and prevent abandoned FADs from polluting the ocean.
By introducing new measures for FADs, the WCPFC expects multiple benefits. Limiting FAD usage (for instance, having closed seasons when FAD fishing is banned, or capping the number of FADs a vessel can have active) directly helps curb the fishing mortality of juvenile tuna, giving those populations a better chance to thrive. It also encourages fishers to target free-swimming schools of tuna more often, which typically results in catching larger, mature fish with fewer ecosystem impacts. Improving FAD design has clear gains: replacing entangling nets with non-entangling materials (like ropes or canvas) means far fewer sharks and turtles get snared on floating FADs. Likewise, developing biodegradable FAD components promises to reduce long-term plastic pollution – if a FAD drifts off or sinks, it will break apart more naturally rather than lingering in the environment for years. Better monitoring and data collection are another critical piece: requiring vessels to report FAD deployments and share their buoy tracking data allows managers to know where FADs are and how they’re being used. That transparency makes it easier to enforce rules (e.g. ensuring vessels don’t deploy more FADs than allowed) and to identify patterns like “FAD hotspots” or high-loss areas that might need special attention. In short, the suite of FAD management actions being pursued – from technical fixes to operational limits – helps fill important monitoring gaps and addresses problems that human observers or paper logs alone struggled to cover.
The working group also stresses that new FAD measures should be implemented in a fair and practical way. Many Pacific Island countries depend on tuna fishing for revenue and food security, so the IWG has been careful to recommend changes that come with capacity-building and support. For example, if fishers are asked to use biodegradable materials, there need to be efforts to identify affordable, locally available substitutes for the current plastic FAD gear. If we introduce FAD tracking requirements, the data handling and technology must be accessible to developing states’ agencies. By working together on common standards (such as a region-wide FAD identification system or a standardized FAD logbook format), WCPFC members can avoid a patchwork of different national rules and ensure that everyone is moving toward best practices in unison. This collaborative, region-wide approach – involving scientists, fishing industry representatives, and conservationists through the observer organizations – has been a hallmark of the FADMO-IWG’s efforts to modernize FAD management in the WCPO.
Historical Highlights
Since its inception, the FAD Management Options IWG has guided the Western and Central Pacific tuna fishery toward progressively stronger FAD controls. Some key milestones include:
- 2014 – Establishment: In response to growing concerns about FAD impacts, WCPFC’s 11th meeting (2014) officially established the FAD Management Options intersessional working group. This decision came after years of debate on how to reduce juvenile tuna catches and bycatch in FAD sets. By creating a dedicated forum, the Commission signaled that managing FADs was a high priority for sustaining tropical tuna stocks (especially bigeye tuna) in the region.
- 2015–2016 – First Meetings and Foundations: The working group held its inaugural meeting in November 2015 (Bali, Indonesia) and a second meeting in September 2016 (Pohnpei, FSM). Chaired by Papua New Guinea, these early sessions focused on gathering information and setting the groundwork. Members shared research and pilot project results related to FAD fishing, and the IWG drafted a FAD Research Plan outlining key studies needed to inform management (topics ranged from tuna behavior around FADs to the effects of FAD density on catch rates). The group also identified what data should be collected about FADs – for example, agreeing on a set of data fields for vessels to report when they deploy or visit a FAD, and discussing the idea of a FAD logbook. Another important focus was developing a scheme for FAD marking and tracking: the IWG recognized that having a unique identifier on each drifting FAD (and possibly using electronic signatures or trackers) would greatly improve accountability. By the end of 2016, the working group had delivered several recommendations to the Commission, including the call to adopt a formal research plan for FAD issues and to initiate the design of a harmonized FAD marking system. With most of its technical “homework” done (data standards, research priorities, etc.), the IWG signaled that it was ready to pivot next toward formulating actual management options for consideration.
- 2017–2018 – Initial Management Measures: In the wake of the IWG’s groundwork, WCPFC began implementing concrete FAD controls in its Conservation and Management Measures. The tropical tuna measures during this period introduced new provisions shaped by the working group’s input. Notably, the Commission agreed to place a limit on the number of drifting FADs that each purse-seine vessel can have active at any one time. (For example, an initial limit of 350 instrumented FADs per vessel was established, meaning no vessel should be monitoring more than 350 drifting FAD buoys simultaneously – a rule aimed at preventing unrestricted proliferation of FADs by any single boat.) The longstanding three-month FAD closure (July–September) continued each year, with some discussions of extending it or adding other temporal/spatial restrictions to further protect juvenile tuna. Around this time, WCPFC also started moving toward improving FAD designs: members were encouraged to deploy non-entangling FADs (NE FADs) that minimize netting or use safer materials, to reduce the entanglement of sharks. Several members and industry groups launched trials of alternative FAD designs – for instance, testing FADs with canvas or rope tails instead of open net mesh. Meanwhile, sub-regional initiatives led by Pacific Island countries provided a test bed for some ideas. The Parties to the Nauru Agreement (PNA), whose waters host a great deal of purse seining, began a program to track drifting FADs by requiring their fishing fleets to report the positions of FAD buoys. Data from that PNA FAD tracking program (covering thousands of FAD trajectories since 2016) were shared with WCPFC’s science providers, offering valuable insight on FAD drift patterns, hotspots, and loss rates. During this period, the FAD-IWG did much of its work via correspondence, keeping tabs on these developments and gathering lessons from the early implementation of FAD limits and experimental projects. The experience gained set the stage for the next round of improvements.
- 2019–2020 – Developing FAD Design Guidelines: By 2019, there was broad consensus that WCPFC needed clear guidelines on what constitutes a non-entangling and environmentally friendly FAD. The Commission tasked the IWG to come up with regional guidelines for FAD construction, including moving toward biodegradable FADs that would eventually replace those made from plastics. In late 2020, the working group convened its fourth session via virtual communications (necessitated by the COVID-19 pandemic) with a singular focus: finalize draft guidelines for non-entangling and biodegradable FAD materials. Despite the challenges of not meeting in person, the participants – with input from scientists and gear experts – succeeded in producing a detailed set of recommended guidelines. These included specifications like: FADs should avoid any mesh that could entangle wildlife (preferring solid sheets or ropes for appendages), and encouraged using natural or biodegradable materials (such as plant-based ropes, bamboo, or rust-perishable metal components) in both the floating raft and the tail. The draft guidelines acknowledged that fully biodegradable FADs were still in trial stages, so they outlined a stepwise approach and definitions for different categories of FADs (ranging from those completely free of plastics to those that still had some non-biodegradable parts). This package was forwarded to the Commission at the end of 2020 for review, marking a significant milestone: it was the first comprehensive regional blueprint for “eco-friendly” FADs in the WCPO.
- 2021–2022 – Strengthening Measures: After review by the Scientific Committee and Technical and Compliance Committee in 2021, the Commission moved to adopt key elements of the FAD-IWG’s work into binding measures. At its annual meeting in December 2021, WCPFC members agreed to a major step: a ban on the use of mesh netting on any part of a FAD, effective January 2024. This effectively mandates the use of non-entangling designs for all new FAD deployments after that date, giving fleets a transition period to shift their FAD inventories. The Commission also endorsed continued research and trials on biodegradable FADs, recognizing that more time was needed to identify materials that are both effective for fishing and truly biodegradable in marine conditions. During 2022, the FAD-IWG (led by a new Chair from the Federated States of Micronesia) worked via email and virtual consultations to advance other priority topics. One focus was creating a WCPFC FAD Logbook – a standardized set of data fields for vessel operators to record every interaction with FADs (deployments, sets, retrievals, etc.). Another focus area was the development of systems for near-real-time sharing of FAD buoy data with management authorities, so that every active FAD in the water could be monitored. The working group compiled available information on these topics and reported progress to WCPFC19 (2022). By the end of 2022, interim guidelines for FAD designs were in place (with the mesh ban countdown underway), and the Commission had reaffirmed the IWG’s mandate by approving a detailed work plan for 2023–2024 to finalize the remaining pieces (like the logbook and buoy data requirements).
- 2023–2024 – Towards Comprehensive FAD Management: In 2023, with new leadership and a reinvigorated agenda, the FADMO-IWG pushed ahead to wrap up its outstanding tasks. The group’s work had coalesced into a few major initiatives: implementing a **FAD Tracking and Data Reporting system** and promoting **FAD retrieval and accountability**. Throughout 2023, the IWG members refined the specifics of the FAD data requirements. This included agreeing on the essential information that satellite buoys attached to FADs should report (such as each FAD’s identification code, its real-time location and movement, and basic sensor readings like buoy battery status and any echo-sounder data that estimates fish aggregation beneath). Discussions also tackled the question of how frequently this data should be transmitted to the WCPFC – balancing the utility of real-time data with the practical and cost constraints for fishing fleets. In mid-2023, the working group tabled a near-final draft of the WCPFC FAD logbook format, which enumerates all the data points captains need to log during their fishing trips regarding FAD activities. By late 2023 and into 2024, the remaining debate centered on compliance details (for example, ensuring that each FAD deployed is uniquely tagged and how to handle reporting for FADs that drift outside the Convention Area). At the Commission’s 2023 session, the FAD-IWG Chair presented an update highlighting the substantial progress and noting that only a few technical details were left to iron out. In 2024, a short virtual meeting of the IWG was convened to resolve those final issues. The outcome was a consolidated proposal for “FAD Monitoring Standards” – essentially, a package combining the standardized logbook requirements and the new satellite buoy data submission rules. This package was put forward for the Commission’s consideration at its 21st session (late 2024). The expectation was that, with consensus, these measures could be adopted by WCPFC, heralding a new era of much-improved oversight of FADs across the Pacific tuna fishery.
Recent Developments and Future Outlook
As of 2025, the efforts of the FAD Management Options Working Group are coming to fruition. The years of behind-the-scenes work – devising plans, drafting guidelines, and building consensus – have laid the groundwork for tangible changes on the water. One major result is already in effect: from 2024 onward, all FADs deployed in WCPFC fisheries must be non-entangling by design (the prohibition on open netting material has taken hold). This means that floating devices now pose far less risk of ensnaring sharks, turtles, or other marine animals as they drift. It’s a clear example of a practical improvement directly stemming from the working group’s recommendations. The other pieces of the puzzle are poised to be put in place soon. The Commission is now deliberating on adopting a comprehensive FAD data reporting regime. Once approved, purse seine vessels will be required to regularly transmit data from their FAD buoys to the WCPFC (likely with only a short delay), and to keep an official logbook of all FAD actions. Such measures will give the Commission unprecedented visibility into FAD usage: authorities will know how many FADs are out there, where they are concentrated, and when they are deployed or retrieved. This greatly enhances transparency and compliance – for instance, ensuring that vessels respect the limit on active FADs, and helping detect any illegal deployments or unauthorized FAD fishing during closure periods.
Even before these new rules are fully formalized, many WCPFC members have been moving in the right direction on their own. Several Pacific Island countries and distant-water fishing nations have voluntarily undertaken pilot programs that align with the IWG’s goals. For example, some fleets have been experimenting with biodegradable FADs made of natural fibers and materials that degrade after months at sea, as an alternative to the plastic-and-net FADs of the past. Early trials have had mixed results (since a FAD that breaks down too quickly may not be effective for fishing), but they have provided valuable information on what designs might work. Concurrently, industry groups like the International Seafood Sustainability Foundation (ISSF) have encouraged their associated vessels to share FAD tracking data and adhere to best practices (such as not deploying FADs in certain sensitive zones, and testing non-plastic components). The knowledge and data generated by these initiatives feed directly into the working group’s deliberations, ensuring that recommendations are grounded in real-world experience. Importantly, the FADMO-IWG has been keeping an eye on global developments as well. Other tuna RFMOs around the world – in the Atlantic, Indian, and Eastern Pacific Oceans – are also grappling with FAD management and have established their own rules (for instance, the Atlantic tuna commission has a similar cap on FAD numbers and the Indian Ocean has begun requiring biodegradable FADs). The WCPFC working group actively exchanges information so that the Western and Central Pacific can harmonize with international best practices where appropriate and avoid reinventing the wheel. This global context means that the Pacific is part of a larger movement towards responsible FAD use, and in some aspects (like the upcoming data-sharing requirements) it may even lead the way.
For the general public, what does all this mean? It means that the tuna caught in the Western and Central Pacific – which accounts for a huge portion of the world’s tuna supply – will increasingly come from a fishery that is under higher oversight and striving to be more sustainable. FADs have often been an out-of-sight issue, but with new monitoring measures, there will be “more eyes on the ocean,” even if those eyes are satellites and databases tracking floating devices. Consumers and retailers are showing interest in FAD-free or responsibly sourced tuna, and the work of this IWG is central to providing those assurances. By reducing the unintended harm caused by FAD fishing (be it killing juvenile tuna, entangling wildlife, or littering the ocean with discarded gear), these efforts help maintain healthier tuna stocks and marine ecosystems. In turn, sustainable stocks secure the livelihoods of Pacific Island communities and the fishing industry for the long run. The journey since 2014 has not been easy – the working group has navigated technical hurdles (like agreeing on data formats and definitions of a “biodegradable” FAD) and political challenges (balancing the different economic interests of fishing nations and coastal states). Small island states have needed support to implement high-tech solutions, and fleets have had to adjust longstanding fishing practices. But the steady progress – from basic FAD research and recommendations to actual implemented measures – demonstrates a strong commitment among WCPFC members to tackle these challenges together. Going forward, as the Commission finalizes the remaining measures (such as the FAD logbook and buoy reporting requirements and possibly new steps like incentivizing FAD retrieval or further limiting FAD deployments), the Western and Central Pacific tuna fishery will be far better equipped to manage FADs in a sustainable way. In essence, the FAD Management Options Intersessional Working Group is bringing an important part of the tuna fishery into the 21st century, ensuring that innovation and accountability go hand in hand to protect the resource and the broader ocean environment.