Administrative aspects

In an article published in Marine Policy a year ago, (Lynne and Brian Chatterton, ‘How much political compromise can fisheries management stand’, Vol 5, No 1, April 1981), it was argued that management of South Australian coastal fisheries reflected the political ideology of the government in power, rather than the biological and socioeconomic imperatives of the resource. In the first article below, A.M. Olsen, former Director of Fisheries, criticizes the Chattertons' conclusions, maintaining that fisheries should be managed by professionals not politicians and that many of Brian Chatterton's problems during his tenure as Minister of Fisheries were of his own making. In the Chattertons' response, they point out that by allocating management of the resource between various vested interests (including government bureaucracy) a minister is making a political decision. In the third article, R.D. Walkerden, a former Permanent Secretary to Fisheries Ministers in South Australia, offers an administrator's view of the controversy. Detailed and parochial as some of the points at issue appear, the debate provides an illuminating view of some of the ideological and organizational conflicts that can hinder the effective management of a coastal resource.     

The Chattertons reply

In an article published in Marine Policy a year ago, (Lynne and Brian Chatterton, ‘How much political compromise can fisheries management stand’, Vol 5, No 1, April 1981), it was argued that management of South Australian coastal fisheries reflected the political ideology of the government in power, rather than the biological and socioeconomic imperatives of the resource. In the first article below, A.M. Olsen, former Director of Fisheries, criticizes the Chattertons' conclusions, maintaining that fisheries should be managed by professionals not politicians and that many of Brian Chatterton's problems during his tenure as Minister of Fisheries were of his own making. In the Chattertons' response, they point out that by allocating management of the resource between various vested interests (including government bureaucracy) a minister is making a political decision. In the third article, R.D. Walkerden, a former Permanent Secretary to Fisheries Ministers in South Australia, offers an administrator's view of the controversy. Detailed and parochial as some of the points at issue appear, the debate provides an illuminating view of some of the ideological and organizational conflicts that can hinder the effective management of a coastal resource.     

River fisheries management in Bangladesh: Drawing lessons from Community Based Fisheries Management (CBFM) experiences

River fisheries in Bangladesh is characterized as “open-access” and the history of administrative and legislative measures bear “contradiction and dilemmas” in resource extraction. The 1950 Fisheries act, the proclamation of 1973 that restricted lease to the registered fisher cooperatives and the experimental New Fisheries Management Policy (NFMP) of 1986 could not contribute to devolve into any participatory institution to introduce sustainable fisheries management. Because of the persistent dilemma in government policy, continued increase in fishing pressure and other anthropogenic reasons, the River resources degraded substantially. Over the past ten years, the Department of Fisheries (DOF) in collaboration with NGOs implemented community based fisheries management (CBFM) approaches with the technical assistance from the WorldFish Center. The principal goal of the approaches was to provide access rights to the fishers through organizing poor fishers and the community to introduce sustainable fisheries management in beels, floodplains and River sections. The CBFM experiences suggest that management and institution building process in river management is complex, and require participation of all concerned stakeholders including local government institutions and administration. CBFM-2 river fisheries management developed a broad-based institutional framework that include community and local government along with the direct beneficiaries and resource users. A positive feature of such institutions is its ability to facilitate flow of information among agents, which is a key to maintain solidarity within and across groups. This paper draws lessons from the CBFM experiences in Bangladesh to manage river fisheries resources in Bangladesh.     

Fiji’s fisheries: their contribution to development and their future

The industrial fisheries of Fiji have had mixed fortunes. The fresh fish export industry has grown rapidly in importance so that fisheries is now the third most valuable export industry; its positive effect on the economy is mainly in the increase in the purchase of goods and services, such as air freight. The present ‘hands off’ policy by government in the fresh fish export industry should continue until the industry matures. In the longer run, ad valorem royalties should be considered as a mean of capturing resource rents. The government-owned export cannery has been in financial decline, and the maintenance of the social benefits of regional employment generated by the cannery has come at a high cost to government coffers. The future of the cannery, now leased to a private operator, is clouded by the uncertainty of the continuity of concessional access to European markets beyond the year 2000. The main task faced by government is the management of fisheries and fish stocks. The management of the inshore fisheries — vital to the needs of a large proportion of the population — needs additional resources. The capability for management of the industrial fisheries, necessary to maximise long term public benefits, would be enhanced by full cost recovery through a user pays policy. This article is based on a paper presented to the Fiji Update seminar, held at the National Centre for Development Studies, the Australian National University, Canberra, on 19 June 1998. The author wishes to thank Mr Krishna Swamy, Senior Fisheries Officer in the Fiji Fisheries Division, and Mr Grahame Southwick, Managing Director of the Fiji Fish Company Ltd, for their generous provision of information for the preparation of this paper; and Mr Joeli Veitayaki, Coordinator of the Ocean Resources Management Programme, University of the South Pacific, for helpful comments. Any errors or omissions are the author’s responsibility, however.     

A new (old) approach to inshore resources management in Samoa

Increasing populations and development in many of the small Pacific Island nations have placed heavy pressures on coastal environments and on inshore fisheries. The population of Samoa, in the Southwestern Pacific, has increased 5–6-fold in the past 150 years. Wetlands, lagoons and coral reefs have been seriously degraded because of inappropriate land-use and fisheries practices and recent catastrophic cyclones, and many fish and invertebrate stocks have declined in the past 10–15 years. A research program was established in 1990 to determine the status of the coastal and inshore environments, to monitor inshore subsistence and commercial fisheries, to determine the status of stocks, and to identify potential management actions. An inventory of inshore resources was produced using aerial photography and ground and underwater surveys. Fisheries catch and effort were established through a national census, questionnaire surveys in households and schools, and creel and market surveys. A major aid program was commenced in 1995 by the Australian government (AusAID) to assist Samoa to establish an effective inshore fisheries and environment management program. A key strategy was the devolution of powers in inshore fisheries management back from the national government to the villages and local fishers. A culturally appropriate co-management model was developed and tested, and has now been adopted by many villages. An inshore fisheries extension capability was developed within Samoa's Fisheries Division to assist villagers to undertake their own environmental and fisheries surveys; identify major factors affecting fisheries; identify ways of reducing these factors; establish an agreed (between village council and national government) plan of management and regulations; and establish their own fisheries management bodies. By the end of 1997 the Inshore Fisheries Extension Service had been established and trained; 26 villages had entered the co-management program and established their own plans of management; and 20 fisheries reserves had been established. The techniques for inshore environmental and fisheries assessment and management developed for Samoa are applicable, with appropriate modification, to subsistence fishing communities elsewhere in the South Pacific.     

New Zealand seafood firm competitiveness in export markets: The role of the quota management system and aquaculture legislation

New Zealand's quota management system (QMS) was implemented in 1986 to address problems caused by a regulated open entry management system in place for the previous two decades. Excess capacity in the inshore fisheries caused several stocks to become depleted and conflicts to intensify between fishing sectors. The allocation of individual transferable quota (ITQ) was viewed as the best way to improve efficiency within the over-capitalised inshore fisheries and provide incentives for developing the deepwater fisheries. The expected benefits of the QMS fit with the political climate at that time, as the government was using market forces to address the deteriorating economy. This article outlines the results of a research project that involved four medium to large-sized, highly vertically integrated New Zealand seafood firms. The purpose of the project was to identify these firms’ sources of competitiveness in export markets and the process the firms used to develop sources of competitiveness, while adapting to rapid and radical changes to the political and business environment and transformation of the fisheries management system. The project's results show that the basis to seafood firm competitiveness is the security of supply to the fisheries resource provided by the QMS and aquaculture legislation. The project also outlines the role that government policies have in sustaining firm- and industry-level competitiveness. This article contributes to the broader discussion on the application of ITQ and other types of long-term access rights to the management of fisheries and does not express the views of the Ministry of Fisheries.     

Historical abundance of juvenile commercial fish in coastal habitats: Implications for fish habitat management in Canada

An important component of science-based fisheries policy is the provision of habitat adequate for population renewal. In Canada, the Fisheries Act pays little attention to managing fish habitat, and was further weakened by changes enacted in 2012. Specifically, determining the role of fish habitat in contributing to fisheries and fish stock recovery is challenging when many stocks have severely declined and no longer occupy former habitats. This study compared the abundance of juvenile fish in coastal vegetated habitats before and after collapse or decline of groundfish stocks in Atlantic Canada. This comparison was done by compiling past studies that surveyed juvenile Atlantic cod (Gadus morhua) and pollock (Pollachius virens) in vegetated habitats across three provinces. Two studies were repeated, and one that already had post-collapse data was analyzed to quantify long-term changes in juvenile abundance. In all three cases substantial reduction in juvenile abundance coincided with declines in adult stocks. However, juvenile fish still occur in coastal habitats and could aid in adult stock recovery. The current version of the Canadian Fisheries Act requires presence of an ongoing fishery to trigger habitat protection. This is problematic as low fish abundance may lead to lowered habitat protection and potentially habitat degradation, with less or lesser-quality habitat for fish in the future. Thus, recommendations are made to repeal the 2012 Fisheries Act changes and enhance current fish habitat legislation. Using a precautionary approach for coastal fish habitat management, particularly in valuing its potential for fish stock recovery, would strengthen Canadian fisheries management.     

Coastal and fisheries co-management in South Africa: an overview and analysis

The newly elected democratic government of South Africa, has promulgated new policies and legislation which advocate alternative approaches to resource management which involve user groups. Co-management has been identified as one such strategy. An overview and analysis of selected coastal and fisheries co-management case studies in South Africa is given and key lessons are highlighted. Research findings indicate that co-management in South Africa is still in its infancy, making it difficult to provide conclusive statements about its success or failure. Nevertheless, the paper highlights some of the key conditions that are required for co-management to operate effectively in South Africa and some of the existing obstacles to practical implementation.     

Development of an integrated fisheries co-management framework for new and emerging commercial fisheries in the Canadian Beaufort Sea

The Canadian Beaufort Sea is one of the last places on Earth that has not experienced large-scale commercial fisheries. The aboriginal people of the western Canadian Arctic, the Inuvialuit, have become increasingly concerned about the potential effects of large-scale commercial operations on key subsistence species of fish and marine mammals and the marine ecosystem upon which they depend. A 1984 comprehensive land settlement agreement (treaty) between Canada and the Inuvialuit established a co-management regime for limited aspects of fish and marine mammal resource management, and gave the Inuvialuit rights to subsistence fisheries and existing commercial fisheries but no preference for new commercial fisheries. The Fisheries Joint Management Committee (the fisheries co-management body), the Canada Department of Fisheries and Oceans, the Inuvialuit Regional Corporation and the Inuvialuit Game Council have developed an integrated fisheries management framework agreement for the review and assessment of any proposed commercial fisheries within the Canadian Beaufort Sea. The agreement provides clarity and transparency for decision making and strengthens the protection of fish stocks. The development of the framework depended upon a history of cooperation between the parties and a bridging initiative by the Fisheries Joint Management Committee and an NGO that brought together the Inuvialuit and the government.     

Unfinished business: Taiwan's experience with rights-based coastal fisheries management

This paper examines a case involving a mix of Territorial Use Rights in Fisheries, co-management and the competition for using coastal zones. In the 2000s, Taiwan's government initiated a remodeling of the fishery right system, which is a rights-based approach to fisheries management, as an attempt to address conflicts between fishers and developers regarding the use of coastal space and to put community-based co-management into practice. The paper particularly compares the system before and after 2000 and identifies areas of concern in the implementation of the remodeled system. The results show that the government's support for this system signifies progress in the right direction. However, concerns emerge, mostly involving fishers' low participation, fishermen's association's lack of technical skills and financial resources, and the division of management responsibility. The government is advised to play a more active role in dealing with these concerns. Finally, the paper reveals that the factor of competition for using coastal zones poses a challenge to co-management, and suggests a holistic view with integrated coastal management or marine spatial planning practices, for developing co-management under the fishery right system.     

深教、疏导、严管、服务——渔政管理工作的探讨

本文深入细致地对做好国家渔业法规宣传教育重要性、必要性，对渔区经济结构因地制宜进行调整和疏导，严格渔政执法，寓管理于服务之中等方面进行阐述。     

Small-scale marine fisheries policy in Vietnam

Vietnam's marine fisheries are considered to be small scale and are concentrated in coastal near-shore waters. This has resulted in heavy pressure on near-shore fisheries resources. Near-shore fisheries are considered by fishers and the government to be over-exploited, causing hardship for many coastal communities. This paper reviews and analyzes changes in policy towards small-scale fisheries in Vietnam over the last two decades. The primary issues facing the small-scale fisheries in Vietnam are to restructure the near-shore fisheries and to address over-capacity. Recommended actions include improved fisheries statistics, resources for provincial fisheries staff, and a coordinated and integrated approach involving a mixed strategy of resource management; resource restoration; economic and community development; and new governance arrangements.     

Exploring concepts of fisheries ‘dependency’ and ‘community’ in Scotland

There is a growing argument that the biological priorities of Europe's Common Fisheries Policy – to halt the depletion of commercial fish stocks – are not a straightforward solution to the problems currently facing international fisheries management and that social objectives need to be incorporated into policy. However, existing notions of fisheries ‘dependency’ and ‘community’ remain poorly understood and leave decision-makers struggling to address social and cultural issues. By investigating further concepts of ‘dependency’, ‘community’ and some of the social issues facing Fisheries Dependent Areas in Scotland, this research explores the complex shape of coastal fishing communities and the conditions of dependency on fishing that coastal areas face. In this paper preliminary findings from an in-depth case study of Fraserburgh in the north east of Scotland are presented to explore the potential meaning and justification of social objectives in fisheries policy.     

Stakeholder objective preferences in Australian Commonwealth managed fisheries

Fisheries management is increasingly involving a wide range of stakeholders in the decision making process. However, in most fisheries, the set of management objectives are poorly defined, and the implicit importance placed on these objectives may vary considerably both between and within different stakeholder groups. This may lead to conflicts within management advisory groups where members from different stakeholder groups view potential management outcomes substantially differently, and inconsistencies in decision making when changes in stakeholder representation take place. In this paper, the institutional structure of fisheries management in Australia and the roles the different organisations play in shaping fisheries management plans are detailed. An explicit hierarchy of management objectives is developed in collaboration with key managers and policy makers. A large survey of stakeholders involved in Australian Commonwealth fisheries management was undertaken to determine stakeholder preferences relating to these objectives. The results highlight the differences in perspectives regarding the relative importance of the multiple objectives of fisheries management. While on average stakeholder preferences generally correspond with their expected preference set, the results also indicate that there is generally low coherence within stakeholder groups.     

The impact of community-based fisheries management (CBFM) on equity and sustainability of small-scale coastal fisheries in the Philippines

It was realized that with the increasing rate of deterioration of fisheries resource in the Philippines, there was no way the country could pursue a pathway of sustainable development. After enactment of the Local Government Code of 1991, the government actively promoted community-based fisheries management (CBFM) to conserve the coastal resources. The increased attention paid to community-based fisheries management has come about through experience of the poor performance of other approaches and through the study of traditional systems of community management of natural resources which have not only survived but also appear to perform better than the alternatives. This paper presents the results of a study to assess the impacts of CBFM projects in the Philippines, using meta-analysis, on the equity and sustainability of small-scale coastal fisheries. The outcomes indicate a positive impact of CBFM on the equity of both involvement in management and benefit sharing and sustainable management of fisheries resources through the investigation of effective magnitude (effect size) based on eight indicators. The positive summary effect sizes of participation, influence, control, access, and income conjunctly portrayed an improved equity in the fishing community by implementing CBFM. The positive summary effect sizes of compliance and conflict indicated an affirmative community and, therefore, sustainable fisheries management. While the negative summary effect size of resource revealed the difficulties in recovering fish abundance in a relatively short period of time. Also, ten years of implementation of CBFM was discovered as the minimum duration with perceived equity and sustainability improvement for most indicators.     

Fishery management as a governance network: Examples from the Gulf of Maine and the potential for communication network analysis research in fisheries

It has been suggested that the fisheries management process with multiple, informed stakeholders and socio-economic, political, and scientific complexity can be considered a governance network. This exploratory study applied communication network analysis (CNA) measures and methods to assess two cases of US federal fishery management in the Northwest Atlantic—Atlantic herring and sea scallop. Through questionnaires and interviews, CNA maps were constructed and quantitative measures of network structure and function (density, weighted average path length) and centrality measures for individual network members (degree, betweenness) were derived using InFlow software. The results show that fishery governance networks are horizontally and vertically integrated across levels of government and public–private–nonprofit sectors. The findings validated existing understanding of fisheries management as a contested, competitive management context among stakeholders, and provided new insights about the effectiveness of information sharing across the network and the critical role of bridgers connecting disparate subgroups. Fisheries management can be conceptualized and analyzed as governance networks, and the paper discusses additional research questions, refinements needed for application of the research methods, and ramifications for managers (e.g., can resource managers manage networks).     

Management systems in the EU fisheries

In the different proposals about fishing resources management systems there is a trend to consider that some incompatibilities exist between forms of management (public intervention or co-management) and the use of instruments based in creating market of fishing rights. In this paper, we will try to leave behind this incompatibility by means of a new concept of management system, which distinguishes accurately the instrument from the institutional framework under which the former is applied. We can see the usefulness of our concept in the European Union fisheries management. Although there is a common policy for all Member States, the way some countries have implemented the Community Regulations has changed the institutional framework which determines the fishermen's activity. The results of our analysis become more outstanding since The Green Paper on the Future of the Common Fisheries Policy emphasises the need to share with the fishermen the drawing-up of the fisheries policy.     

Extracting ideology from policy: Analysing the social construction of conservation priorities in the Coral Triangle region

This study presents an analysis of marine resource management activities designed to ameliorate concerns over fish stocks, food and livelihood insecurity in the coastal Asia Pacific region, with a specific focus on the area encompassed by the Coral Triangle Initiative on Coral Reefs, Fisheries and Food Security (CTI-CFF). Firstly, the study explores how the CTI-CFF framing of food insecurity as symptomatic of economic deficiencies at the household level reflects the broader neoliberal conservation agenda driving the CTI-CFF and serves to legitimate the latter as the natural authority for intervention. Secondly, the paper uses an example of local level fishery management to demonstrate how the logic of neoliberalism translates to regulations which fail to recognise social and political complexities confronting fishers, thereby exacerbating the precarity of food and livelihood security in these communities. Thirdly, the paper contrasts the Western scientific emphasis on maintaining food security through managing coral reef fisheries with evidence from Indonesia and the Philippines which demonstrates the much larger contribution from pelagic fisheries and aquaculture to food security. The paper concludes with a call for research and aid-funded interventions on fishery management, livelihoods and food security to better reflect the needs of coastal people in the Asia-Pacific region, rather than the values commonly espoused by Western scientists and conservationists.     

Perceptions of subsistence and informal fishers in South Africa regarding the management of living marine resources

Following the legal recognition of subsistence fishers in 1998 through the promulgation of the Marine Living Resources Act, a Subsistence Fisheries Task Group (SFTG) was appointed by national government to provide recommendations on the management of subsistence fishing in South Africa. To achieve effective management, the SFTG recognized that fishers' needs, perceptions and concerns must be understood and incorporated into future management strategies. As a result, information from fishers was gathered through a five-month research programme that included questionnaire surveys, focus-group meetings, a "roadshow" and a national workshop. Research findings indicated that the fishers' responses centred on four key themes related to (1) the criteria for defining a subsistence fisher, (2) current management practices, (3) resource use and (4) livelihood strategies. Feedback from fishers revealed several issues that have led to uncertainty and dissatisfaction among informal and subsistence fishers. However, these perceptions need to be contextualized within the historical circumstances of fisheries management in South Africa, and it must be recognized that attitudes will only change when management approaches embrace the needs, perceptions and concerns of the users. The information outlined in this paper was instrumental in guiding the formulation of the SFTG recommendations regarding the definition of subsistence fishers and their future management in South Africa.