The fishing industry cannot currently be relied upon to help the government count the seabirds killed by net fishing, since an accurate count might result in restriction of net fishing.
Goal
Get an accurate count of seabirds killed by net fishing.
Plan
Institute a program in which the fishing industry turns in dead seabirds, the government examines them for toxins, thereby helping the fishing industry to know if the fish it catches are contaminated with toxins.
Evaluate
We want to think,
Maybe the fishing industry wouldn't cooperate at all. Maybe they'd cooperate to some extent, but the dead seabirds they turn in still wouldn't allow the govt to get an accurate count of how many birds are killed by net fishing.
After all, couldn't the fishing industry just turn in a few dead birds to see how they measure for toxins? If five out of five birds came back with lots of toxins, then it would be safe to assume that the fish are contaminated. There'd be no need to submit ALL the dead birds.
Goal
Let's find an answer that demonstrates that the proposed program would still not provide a complete and accurate count of the seabirds killed.