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455 Great Lakes Fisheries Law Enforcement Edmund F. McGarrell, Michael Suttmoeller, and Carole Gibbs ManagementoftheGreatLakesfisheriesinvolvesacomplexgovernancestructurespanningnations,states, tribal authorities, and local authorities. These authorities are responsible for addressing the challenges facing the Great Lakes through promulgation of law and policy and implementing practices that balance science-based evidence, scientific uncertainty, competing interests, and budgetary constraints in a multijurisdictional context. All key issues facing the Great Lakes, such as allocation of fishery resources across commercial, recreational, and tribal interests; control of invasive species; and maintenance of Great Lakes water quality and habitat, are contingent on effective governance of the Great Lakes ecosystem. An often overlooked component of this governance structure is the role of law enforcement. Fishery allocations, ballast water restrictions, and water quality, are governed by laws, compliance to which is maximized through education, regulation, and enforcement (Randall 2004). This exploratory chapter seeks to improve understanding of effective governance of the Great Lakes fisheries, by considering the mission, structure, and processes of Great Lakes law enforcement. We are limited by the lack of data on crime on the Great Lakes, as well as by limited information on the multitude of agencies with some law enforcement jurisdiction related to theGreatLakes.Consequently,thischapter’s primary goal is to provide an overview of these issues as a foundation for future research, as well as to highlight the role of enforcement as part of the governance system for the Great Lakes. We begin by addressing the structure of law enforcement related to the Great Lakes. We then relate the role of enforcement to the major threats and risks facing the Great Lakes and the Great Lakes fisheries, in particular. In an attempt to provide a snapshot of the nature and scope of enforcement activities on the Great Lakes, we then review a sample of enforcement actions. We conclude the chapter by considering the future of Great Lakes law enforcement, as well as the need for additional research on issues raised within this chapter. Structure of Great Lakes Law Enforcement The challenge of Great Lakes law enforcement begins with the nature of the resource itself. The Great Lakes comprise 20 percent of the world’s fresh water, border eight U.S. states, the Canadian province of McGarrell, Suttmoeller, and Gibbs 456 Ontario, and two countries. The combined surface area of the Great Lakes is more than ninety thousand square miles or roughly the size of the United Kingdom. The Great Lakes provide drinking water to tens of millions of citizens. The commercial and recreational fisheries industries are estimated to generate $4 billion in economic activity (U.S. Environmental Protection Agency 2010; Beeton et al. 1999; Brown et al. 1999; Ferreri et al. 1999). The sheer size of the lakes creates a major enforcement challenge, and the cultural, environmental, natural resource, and recreational values of the lakes suggest the need for greater understanding of the potential risks associated with criminal activity, as well as appropriate enforcement systems necessary to address these risks. Similar to the complex nature of Great Lakes fisheries management, the law enforcement governance structureiscomplexbecauseofthemultiplejurisdictionsinvolvedandfunctionaldifferentiationcausedby related but distinct missions. The political boundaries of the Great Lakes involve two countries, eight states, a province, and numerous local political entities. As Caldwell (1994) notes, governance of the Great Lakes involves more than 650 governmental units. Many of these 650 units have their own corresponding law enforcement agencies operating at either federal, state, provincial, tribal, or local levels, with responsibilities related to Great Lakes fisheries. For example, in the United States, this includes federal agencies, such as the U.S. Coast Guard, the Environmental Protection Agency (EPA), and U.S. Fish and Wildlife Service (USFWS). At the state level, the eight states have a state police agency, as well as agencies responsible for natural resources and environmental protection. Indeed, there are thirteen agencies covering the eight states with such responsibilities. For example, the state of Pennsylvania relies on its Department of Environmental Protection, as well as its Department of Conservation and Natural Resources, both of which have varied responsibilities for the Great Lakes. Similarly, Michigan, relies on the Environmental Investigation Section of its Department of Environmental Quality (DEQ) along with the Law Enforcement Division of the Michigan Department of Natural Resources (DNR). Most of these state agencies grant their officers general law enforcement authority and responsibility. In addition to the complexity related to geographical jurisdiction, there is functional differentiation across many of these law enforcement agencies. For example, the U.S. EPA has principal responsibility for regulation and...

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