The High Seas Boarding and Inspection (HSBI) Intersessional Working Group, formed in late 2024, is improving how high seas inspections are done in the Western and Central Pacific Ocean. The group develops region-wide guidelines and best practices for inspectors who board fishing vessels to check compliance with WCPFC rules. The guides cover modern tools such as DNA sampling, catch weight estimation, and photographic evidence, plus updated multilingual crew questionnaires. Common standards strengthen enforcement and ensure consistency across members, supporting sustainable and responsible fisheries management.
Background and Purpose
HSBI is a core compliance tool created early in WCPFC’s history. In 2006, the Commission adopted Boarding and Inspection Procedures (CMM 2006-08) under the Convention. This enabled members to inspect each other’s vessels on the high seas and deter illegal, unreported, and unregulated fishing outside national waters. The Secretariat and members then established practical elements such as the WCPFC Inspection Flag, inspector ID cards, and a Standardized Multi-language Questionnaire. By early 2008, the HSBI scheme became operational. Members registered patrol vessels and inspectors, who could board vessels on the high seas to verify quotas, gear, and reporting.
Through the next decade, HSBI became a regular part of regional Monitoring, Control, and Surveillance. A core group of members conducted most boardings, with totals at times exceeding 100 per year. Use grew, and so did recognition of gaps. New technologies emerged without shared guidance, practices varied across agencies, and the questionnaire fell behind new measures. Some members also sought clear best practices to help build capacity. From 2021 to 2022, calls to modernize HSBI increased.
In 2024, TCC and the Commission moved to update and harmonize procedures. At TCC20 in September 2024, China and others proposed standardizing techniques such as DNA sampling and catch weight estimation, and refreshing the questionnaire. Australia volunteered to lead an intersessional working group, and at WCPFC21 in December 2024 the HSBI-IWG was established to develop voluntary regional guides and best practices for tools used during inspections, with results targeted for end of 2025. David Power of Australia serves as chair. The group is open to all members, participating territories, and observers. Work occurs through email and virtual meetings. The Secretariat provides a dedicated webpage and logistics. The group seeks practical, flexible guidance suitable for all, including developing states, and builds on existing materials where possible.
Why High Seas Boarding and Inspection?
- What is HSBI and why do we have it? HSBI allows authorized officers to board fishing vessels on the high seas to check compliance with conservation and management measures. It lets members act as each other’s inspectors in international waters. Without this scheme, the high seas could favor non-compliance. HSBI complements VMS and observers by offering direct verification. Inspectors review records, catch, gear, licenses, and interview crews. The prospect of boarding promotes compliance across the Convention Area.
- Challenges and the need for better guidelines: Boardings at sea involve safety risks, time limits, language barriers, and different vessel practices. Training and methods varied by country. Evidence collection methods differed, which affected consistency and trust. New tools, such as DNA testing and high-resolution photo or video, lacked shared protocols for sampling, labeling, chain of custody, and secure storage. Measuring bycatch mitigation devices and verifying specifications required standard methods and calibrated tools. The questionnaire was outdated. Members sought guidelines to make inspections consistent, thorough, and evidence-based, while protecting crew rights and ensuring fair, transparent procedures.
With new guides and best practices, inspections become more effective and credible. A shared playbook reduces missed checks, improves detection of violations, and strengthens evidence that supports follow-up by flag States and the Compliance Monitoring Scheme. The work also builds capacity and shares learning. Practical guides, checklists, and training materials help officers in all members, including those with limited resources, improve inspection quality.
Historical Highlights
Key milestones in HSBI and the improvement effort:
- 2006, Establishment of HSBI Scheme: WCPFC adopts CMM 2006-08, operationalizing Article 26 and setting rights, duties, and reporting for high seas inspections. Members planned supporting tools such as the inspection flag and inspector ID.
- 2007 to 2009, Implementation: Secretariat and members finalized the inspection flag, ID cards, and a multi-language questionnaire. The HSBI Register of authorized vessels and personnel was created. Training supported early operations. HSBI became an established part of MCS by 2008 to 2009.
- 2010s, Routine Operations: Boardings increased, often focusing on longline fleets. Annual HSBI reports showed a small group of active inspecting members and a mix of minor and some serious violations. The questionnaire and 2006 procedures remained in use, while interest in modernization grew.
- 2020, Pandemic Disruption: Boardings dropped sharply due to health and travel limits. Shorter or remote checks highlighted the value of clear checklists and contactless documentation, and spurred interest in complementary tools such as electronic monitoring.
- 2021 to 2022, Momentum for Review: As boardings resumed, members discussed HSBI performance and technology use. Australia and others developed guidance nationally, while the Commission kept HSBI under review in work plans.
- 2023 to 2024, Proposal and Formation: At TCC20 in September 2024, China proposed best practice guides for HSBI tools. Australia offered to lead. WCPFC21 in December 2024 established the HSBI-IWG with a voluntary guidance mandate and appointed David Power as chair.
- 2025, Drafting: The first virtual meeting in March 2025 set scope and work plan. Draft topics included DNA sampling, catch weight estimation, bycatch device measurement, photo and video evidence, sharing large media files, updating the questionnaire, and calibration of tools. Members volunteered to draft sections.
- June 2025, Refinement: HSBIWG02 reviewed drafts. Australia led DNA and calibration guides. France contributed volumetrics. New Zealand and the United States added bycatch device checks. Canada and Pacific members refined photo and video guidance and the questionnaire. The group emphasized practical, non-prescriptive language aligned with existing measures.
- August 2025, Near Final Drafts: HSBIWG03 consolidated five main guides, covering DNA sampling, catch quantification, photo and video evidence, bycatch device measurement, and tool calibration. The group made final technical edits and set a short window for written comments.
- September 2025, TCC Endorsement: TCC21 received the package and endorsed forwarding it to WCPFC22 with a positive recommendation.
- Late 2025, Anticipated Adoption: WCPFC22 is expected to approve the voluntary guides. The Commission may publish the guides, support training, and consider future updates if needed.
Recent Developments and Future Outlook
As of 2025, the HSBI-IWG’s work is nearing completion. Once the Commission endorses the voluntary guides, members will start integrating them. From 2026, inspectors from different members will follow similar procedures. This creates consistent, fair, and thorough inspections across the Convention Area.
The guides enhance evidence and reporting. Inspectors will use agreed volumetric methods for catch estimates and document calculations in reports. DNA sampling protocols will support species verification, with clear chain of custody. Standard photo and video practices will improve the reliability of field evidence used in follow-up and compliance review.
Cooperation and capacity building will grow. Members plan training and may offer mentorship or joint patrols. The guides include scalable options for different resource levels, so every member implements the core practices even with varied tools.
These upgrades align with global trends in fisheries governance. WCPFC’s detailed, multi-member guides set a strong example and complement other MCS tools such as electronic reporting, electronic monitoring, vessel tracking, and port inspections. Together, they strengthen the compliance chain from sea to market.
For the general public, what does this mean? Seafood from the Western and Central Pacific will face stronger oversight. Inspections at sea will be more consistent and better documented. Crews that follow the rules will see predictable procedures. Those who do not will face a more thorough inspection process. Stronger enforcement supports healthier stocks and fair competition, which benefits Pacific Island communities and markets that value sustainability.
From 2006 to 2025, HSBI progressed from setup to modernization. The new guides balance clarity and flexibility, support developing states, and reflect a shared commitment to effective enforcement. Members will focus on implementation and training, and review the guides as technology evolves. This work ensures rules are enforced effectively on the high seas for the benefit of the resource and all who depend on it.