HD56 - House Joint Resolution No. 95 (1994) - A Strategic Plan for the Revitalization of the Shellfish Industry in Virginia


Executive Summary:
I. INTRODUCTION

This plan was prepared pursuant to House Joint Resolutions 535 (1993) and 95 (1994) by the Virginia Delegation to the Chesapeake Bay Commission. The delegation was assisted by a committee of industry representatives, scientists and state government officials. This plan proposes a series of findings, goals, objectives and actions for the protection, enhancement and revitalization of the shellfish industry in Virginia.

II. COMMITTEE FINDINGS - CURRENT STATUS OF THE INDUSTRY AND THE RESOURCE

Finding 1: For the purpose of this plan, the shellfish industry includes the wild harvest of clams, oysters and other commercially marketable mollusks, the culturing of those species and the processing of those species for wholesale or retail sale.

Rationale: While the committee has spent a great deal of time examining the plight of the oyster industry specifically, it is not the only component of the shellfish industry in Virginia. The committee believes that a comprehensive strategy which encompasses all marketable and potentially marketable mollusks is in the best interest of a stable, economically viable industry and therefore presents recommendations applicable to a variety of species and methods of harvesting and culturing.

Finding 2: The shellfish industry has been an important component of Virginia's economy but has seen declines in recent years.

Rationale: The economic value of a revitalized shellfish industry will be substantial. Restored and enhanced fisheries will increase opportunities for harvesters, processors and marketers and will yield a significant return on public and private investment. Tables 1 - 4, shown on numbered page 2 of the report, offer historical comparisons of related economic activity.

It is also important to recognize the non-harvest benefits of a revitalized fishery. For example, oyster reefs also provide habitat for species sought by recreational anglers. Recreational fishing, tourism and related industries should also benefit from a restored oyster fishery.

Finding 3: A revitalized industry will allow full use of Virginia's shellfish harvesting and processing facilities.

Rationale: Virginia possesses a significant shellfish industry "infrastructure," including a large processing capacity, established transportation networks and facilities, a skilled workforce and an experienced fishing fleet. Currently, Virginia's processing and harvesting capacity is not being fully utilized and would benefit from a greater abundance of locally available product.

Finding 4: Aquaculture has and will continue to be an important part of a comprehensive strategy to revitalize Virginia's shellfish industry.

Rationale: Prior to the late 1970's, the private planting of oysters accounted for the vast majority of oyster harvests. Increasingly, other species, particularly clams, are being cultured through various methods. In fact, the value of culture clams now exceed the value of the wild harvest. A robust shellfish industry must have a strong private component.

Finding 5: Shellfish play an important role in the ecology of Virginia's tidal waters. The restoration of populations is a component of habitat restoration, water quality protection and restoration of ecologic systems.

Rationale: The ecologic role of filter feeding shellfish is increasingly well understood. Filtering action removes nutrients and other pollutants from the water column and the structure of reef communities offer important habitat which contribute to the biological diversity of the Chesapeake Bay ecosystem.

Finding 6: Historic declines in harvest and total populations of oysters, are due to a variety of factors including harvest, the spread and intensification of dermo and MSX, water quality degradation, loss of habitat from encroachment of land-based uses, climatic events, predation, and loss of habitat from dredging and other subaqueous bottom modification.

Rationale: It is the finding of the committee that the current depressed levels of the oyster has many causes, of which not all are fully understood. The committee recognizes that a variety of factors cited above, some of which are outside our control, have combined to decimate oyster populations.

Specifically, the intensification and spread of dermo and MSX coincided with a series of years of below average precipitation in the late 1980's. Precipitation in 1993, which is closer to historical averages, has led to some abatement of MSX in the upper reaches of the James River. However, dermo has proved to be less susceptible to changes in salinity and is present throughout the oyster's range in Virginia. Obviously, there is no firm method of determining whether future weather patterns will match historical averages and even if MSX abates due to a return to normal weather patterns, dermo may not abate.

Further, the committee remains concerned about the protection of water quality and the closure of shellfish areas due to activities that cause pollution. As of July 1, 1993, some 99,236 acres of productive or potentially productive shellfish growing areas are closed to direct harvesting. The Division of Shellfish Sanitation has been justifiably conservative in its closure policies in order to protect the public health and to ensure that Virginia can market its products in accordance with national standards. However, the committee believes that for the industry to reach its full potential, sources of pollution must be corrected so that condemned areas can be reopened and new condemnations will end.

Finally, effective management and regulation is a vital component of a restoration strategy that needs to be implemented in the context of the ecological and economic value of individual species and communities of shellfish species.

Finding 7: Just as declines are attributable to a variety of factors, revitalization of the industry will come from progress on a variety of fronts including management, disease and immune system research, habitat protection, selective breeding, identification and development of species not currently being cultured or non-native species and market restoration and development.

Rationale: This plan recognizes that a combination of strategies will be necessary for the revitalization of the industry, some of which are long term and some short term. Pollution control efforts, for example, have reduced the concentrations of nutrients and bacteria in many part of Chesapeake Bay. Over the long run, however, population growth and development that result in activities that cause pollution may reduce these gains and produce shellfish closures. A successful program will incorporate a number of approaches and the mix and emphasis will change with time.

Finding 8: Not all components of the shellfish industry are in decline, however, the current depressed condition of the oyster industry is of greatest concern due to the historical importance of oysters to the economy of Virginia.

Rationale: The news about the shellfish industry is not all bad. Clam harvests remain stable although there is some concern about increased fishing effort, and, as noted, there is optimism about the future of the aquaculture industry. However, the relative value of these components of the industry are small compared to the historical value of the oyster industry.

Finding 9: MSX and dermo will always be present in oyster populations and must be taken into consideration when undertaking research, habitat restoration and management.

Rationale: There is little doubt that MSX and dermo will continue to effect the oyster resource. The portion of the shellfish industry that is based on the native oyster will always be impacted to a certain extent by dermo and MSX.

Finding 10: While efforts are underway to reduce toxics and other pollutants, serious concern remains over the presence and impact of toxic and other pollutants on the survival, resistance to disease and reproduction of shellfish species.

Rationale: Investigations conducted by scientists at the Virginia Institute of Marine Science have begun to establish a link between certain toxic pollutants and the ability of shellfish to resist disease, thrive and reproduce. While the amount of toxic materials released into Chesapeake Bay have decreased in recent years, there remains a good deal of scientific uncertainty about the cumulative effects of certain toxic materials and combinations of toxics materials. Further investigations are required to fill these gaps in knowledge, but prudence dictates that further reductions and elimination of toxic discharges and their effects should be a goal. The committee does not presume that toxic pollutants are the only pollutants which may jeopardize shellfish resources; shellfish can suffer in low-oxygen conditions and be smothered by sediments.