Collaborative fisheries management in the Northeast US: Emerging initiatives and future directions

The nature of participation by fishing organizations in fisheries management in the Northeast US is changing. Evidence of this is the number of groups that are actively seeking opportunities for group governance of marine resources. This article explores emerging collaborative or co-management arrangements in this region (a process whereby decision-making is shared between federal/council level and fishery stakeholder groups) and the shift towards an ecosystem-based approach to the management of marine fisheries.This research suggests that it is an opportune time for the development of a regional policy in the Northeast that provides an enabling environment in support of decentralized governance of federally managed marine fisheries. It also suggests that these initiatives can play a key role in operationalizing ecosystem-based management.     

Moving beyond the MSY concept to reflect multidimensional fisheries management objectives

Maximising the long term average catch of single stock fisheries as prescribed by the globally-legislated MSY objective is unlikely to ensure ecosystem, economic, social and governance sustainability unless an effort is made to explicitly include these considerations. We investigated how objectives to be maximised can be combined with sustainability constraints aiming specifically at one or more of these four sustainability pillars. The study was conducted as a three-year interactive process involving 290 participating science, industry, NGO and management representatives from six different European regions. Economic considerations and inclusive governance were generally preferred as the key objectives to be maximised in complex fisheries, recognising that ecosystem, social and governance constraints are also key aspects of sustainability in all regions. Relative preferences differed between regions and cases but were similar across a series of workshops, different levels of information provided and the form of elicitation methods used as long as major shifts in context or stakeholder composition did not occur. Maximising inclusiveness in governance, particularly the inclusiveness of affected stakeholders, was highly preferred by participants across the project. This suggests that advice incorporating flexibility in the interpretation of objectives to leave room for meaningful inclusiveness in decision-making processes is likely to be a prerequisite for stakeholder buy-in to management decisions.     

Refocusing conservation through a cultural lens: Improving governance in the Wakatobi National Park,Indonesia

The Wakatobi National Park in eastern Indonesia offers valuable insights into the effectiveness of governance incentives in a national context characterised by uncoordinated policies and evolving conflicts over power and authority within government. Economic incentives resulting from strategic alliances between the public and private sector have been targeted towards enhanced regulation of fisheries and supporting tourism interests. However, the absence of coherent policies relating to tourism, which partly reflects contests over jurisdiction between national and local levels of government, opens up considerable potential for inappropriate forms of development. Furthermore, any incentives designed to facilitate governance should explicitly recognise the status of the Bajau, who constitute a key stakeholder group yet have been consistently marginalised through both state and NGO initiatives. The possible outcomes of ongoing decentralisation, which include enhanced government accountability, flexibility in developing regulations relating to marine resource use and greater participation of minority groups in decision-making, offer some prospect for improved governance of the Wakatobi and other marine protected areas in Indonesia.     

Monitoring and evaluation of spatially managed areas: A generic framework for implementation of ecosystem based marine management and its application

This study introduces a framework for the monitoring and evaluation of spatially managed areas (SMAs), which is currently being tested by nine European case studies. The framework provides guidance on the selection, mapping, and assessment of ecosystem components and human pressures, the evaluation of management effectiveness and potential adaptations to management. Moreover, it provides a structured approach with advice on spatially explicit tools for practical tasks like the assessment of cumulative impacts of human pressures or pressure-state relationships. The case studies revealed emerging challenges, such as the lack of operational objectives within SMAs, particularly for transnational cases, data access, and stakeholder involvement. Furthermore, the emerging challenges of integrating the framework assessment using scientific information with a structured governance research analysis based mainly on qualitative information are addressed. The lessons learned will provide a better insight into the full range of methods and approaches required to support the implementation of the ecosystem approach to marine spatial management in Europe and elsewhere.     

Marine informational governance,a conceptual framework

Marine governance involves interaction between networks and actors from different types and levels of organizations. The concept of multi-level or network governance steps away from the assumptions that supra-national and national government at the macro level is the dominant policy making unit. At all levels information is crucial, among others to overcome social dilemmas of collective action in marine resource use and management. In this paper theories of multi-level governance, of collective action, of trust and of information economics will be linked to the idea of the increasing importance of information, information technologies and information processes in environmental governance, which is termed ‘informational governance’. This linking of theories and concepts results in a new and innovative framework to better understand the changing role of information in marine resource management, enterprises, institutions and actual practices of governance. The framework will help to investigate the effectiveness of informational governance in solving problems related to marine resources.     

Governance strengths and weaknesses to implement the marine strategy framework directive in European waters

The ambitious Marine Strategy Framework Directive (MSFD) has been the focus of much marine research across Europe in the pursuit of achieving Good Environmental Status in the four European Union marine regions; Baltic Sea, Black Sea, Mediterranean Sea and North-east Atlantic. This research addresses the Strengths, Weakness, Opportunities and Threats (SWOT) of the current European marine governance structures and its relationship to implement the MSFD. Results of the SWOT analysis were acquired through a combination of approaches with MSFD experts and stakeholders including: 30 face-to-face interviews, an online survey with 264 stakeholder respondents and focus groups within each European marine region. The SWOT analysis concurrently identifies common strengths and weakness and key governance issues for implementing the MSFD for European marine regions. This paper forms one assessment within the governance component of the Options for Delivering Ecosystem Based Marine Management (ODEMM) project and presents timely issues that can be of benefit to national and European Union policy makers.     

Putting sustainable fisheries on the map? Establishing no-take zones for North Sea plaice fisheries through MSC certification

Spatial approaches gain importance in the governance of marine practices and their environmental impacts. Harmful effects of fishing gear on marine habitats is seen as a considerable spatial conflict that needs to be resolved. One of the most severe measures is the instalment of ‘no take zones’. In the certification programme of the Marine Stewardship Council (MSC) this measure is considered to be a last resort. MSC provides a telling example of ‘informational governance’, that is, a mode of environmental governance wherein information plays a centripetal but often also contested role. Such governing through information is different from conventional state-led decision-making processes. This paper assesses the way informational processes in MSC have affected the settlement of the spatial conflict between plaice fisheries and sensitive habitats in the North Sea. It concludes that information is a formative force in bringing about sustainable fisheries but leads to different outcomes even if the target species and fishing methods are very much alike. This is due to the (nationally) specific informational interactions between non-state actors, especially fishermen and environmental Non-Governmental Organizations. Even though information in marine governance should be science-based, other information (brought in by these actors) is extremely relevant in designing spatial measures.     

Guiding ecological principles for marine spatial planning

The declining health of marine ecosystems around the world is evidence that current piecemeal governance is inadequate to successfully support healthy coastal and ocean ecosystems and sustain human uses of the ocean. One proposed solution to this problem is ecosystem-based marine spatial planning (MSP), which is a process that informs the spatial distribution of activities in the ocean so that existing and emerging uses can be maintained, use conflicts reduced, and ecosystem health and services protected and sustained for future generations. Because a key goal of ecosystem-based MSP is to maintain the delivery of ecosystem services that humans want and need, it must be based on ecological principles that articulate the scientifically recognized attributes of healthy, functioning ecosystems. These principles should be incorporated into a decision-making framework with clearly defined targets for these ecological attributes. This paper identifies ecological principles for MSP based on a synthesis of previously suggested and/or operationalized principles, along with recommendations generated by a group of twenty ecologists and marine scientists with diverse backgrounds and perspectives on MSP. The proposed four main ecological principles to guide MSP—maintaining or restoring: native species diversity, habitat diversity and heterogeneity, key species, and connectivity—and two additional guidelines, the need to account for context and uncertainty, must be explicitly taken into account in the planning process. When applied in concert with social, economic, and governance principles, these ecological principles can inform the designation and siting of ocean uses and the management of activities in the ocean to maintain or restore healthy ecosystems, allow delivery of marine ecosystem services, and ensure sustainable economic and social benefits.     

“Living with our backs to the sea”: A critical analysis of marine and coastal governance in Guatemala

Guatemala's rich coastal and marine biodiversity provides essential ecosystem goods and services to local residents and the national economy through artisanal and commercial fisheries, aquaculture, port exports and, to a lesser extent, tourism. As in many other countries, national policies emphasise the significance of marine conservation and marine resources, primarily through implementing marine protected areas (MPAs). However, this assumes that governance, as reflected in legal, institutional and organizational frameworks, political capacity and human resources is sufficiently developed to ensure MPAs meet these goals. These issues are explored through presenting the first detailed analysis of coastal and marine governance in Guatemala. The research highlights a range of barriers to good governance which restrict the extent to which MPAs can function effectively. Recommendations are made which can capitalise upon the potential for locally managed marine areas as a means to facilitate the improved governance of coastal and marine resources in Guatemala.     

Understanding divergent perspectives in marine governance in Kenya

To understand the subtle institutional conditions that underlie marine governance, beyond broad conceptualisations of property rights or pre-defined institutional designs, it is necessary to situate governance structures and human interactions within their historical and current social and political context. A two-tiered stakeholder analysis was developed to facilitate this. This analytical tool illuminates divergent perspectives between actors in two marine social-ecological systems in Southern Kenya. Investigating these differences emphasises the variety of historical contexts, social geographies, and current power relations in which different groups are situated. These historical and contextual factors mediate how groups perceive and respond to governance. They, therefore, have important implications for how institutions function.     

Fishing for opinions: Stakeholder views on MSFD implementation in European Seas

Stakeholder participation is vital when introducing and implementing ecosystem-based management (EBM) at any scale. This paper presents the results of a survey covering four European Regional Seas (Baltic Sea, Black Sea, Mediterranean Sea and North-East Atlantic Ocean) aimed to collect stakeholders׳ perspectives on their Regional Sea governance to implement the European Union (EU) Marine Strategy Framework Directive (MSFD). In this survey, drivers of good governance including stakeholder involvement, willingness and capacity to cooperate, efficiency, institutional ambiguity and decision-making were explored. The results indicate a clear gap in perception between the current, the ideal and the foreseen situation regarding the implementation of the MSFD. The preferences for the future governance structures vary between stakeholders and across seas although some similarities can be found. Based on the results of the survey, this paper concludes that tailor-made rather than off-the-shelf solutions will be needed to accommodate regional cooperation in the European marine environment for implementing ecosystem-based management under the MSFD.     

Regional cooperation for European seas: Governance models in support of the implementation of the MSFD

During the implementation process of the Marine Strategy Framework Directive (MSFD), Member States are expected to cooperate and coordinate at the regional sea level as wells as arrange stakeholder involvement. However, the MSFD does not specify any governing structures to do so. The aim of this paper is to address these key challenges of the MSFD by developing four governance models for regional cooperation and assess their impact on governance performance. The four models are based on the building blocks of stakeholder involvement (low or high) and decision-making power (binding or non-binding decisions): (1) Cross-border platforms; (2) Regional Sea Convention-PLUS; (3) Advisory Alliance and (4) Regional Sea Assembly. Secondly, the paper will do an ex ante assessment on how the alternative models will have an impact on governance performance. The assessment criteria for governance performance are: (a) costs to set up and run a model; (b) capacity to cooperate; (c) policy coordination; (d) institutional ambiguity; and (e) implementation drift. In addition to this assessment of the performance based on expert judgement (i.e. scientists of WP7 of the ODEMM project), 4 roundtable discussions have been undertaken in which stakeholders from the four regional seas did an assessment of the four models. The main conclusion is that increasing stakeholder participation, a much desired development in regional organisation of marine management as expressed by the stakeholder community, will increase the costs of the policy making process. If stakeholder participation is not embedded in a wider institutional setting in which the participation of stakeholders is directly related to the policy process and the degree to which decisions taken are binding, the increase of costs does not lead to a more smoothly running model.     

Regulating wave and tidal energy: An industry perspective on the Scottish marine governance framework

The emerging ocean energy industry, which seeks to utilise waves and tides to generate electricity, is developing in many jurisdictions. The UK, and Scotland in particular, is strongly interested in these technologies, and has made considerable efforts to reform its marine governance processes to better meet the needs of innovative new marine industries. This paper provides an industry perspective on this regulatory framework, reporting on the experiences of ocean energy project and technology developers. Semi-structured interviews with companies with practical experience with Scotland's regulatory framework provide evidence of a number of legal and regulatory challenges, as well as interesting insights into how developers are interacting with new marine governance systems. The paper details the findings of these interviews and offers some suggested directions for future research.     

山东省海洋牧场观测网的建设与发展

在全球气候变化的背景下，现代化海洋牧场是我国应对近海生态环境恶化和渔业资源衰退、实现海洋生态文明和海洋强国战略的重要手段。而海洋牧场观测网是科学指导现代化海洋牧场建设，并进行科学管理的重要基础。为了保障现代化海洋牧场的可持续健康发展，山东省于2015年底开始在各海洋牧场建设生态环境海底观测站，并组网建成世界先进的海洋牧场观测网，目前已覆盖23处海洋牧场。设立观测网预警中心，负责海洋牧场观测网的日常运行和维护，同时开展水域多学科耦合过程的基础研究和业务化辅助决策的应用服务。海洋牧场观测网的建立和业务化运行初步实现了海洋牧场生态环境和渔业资源的"可测"、"可视"、"可控"和"可预警"。目前，我国现代化海洋牧场观测网的科学发展仍面临诸多挑战，建议进一步增强观测设备的自主研发能力和长期在线监测的稳定性，跨介质立体组网、实现海洋牧场的全方位立体监测，深化多学科耦合过程的基础研究并提供多元业务化辅助决策应用服务，为现代化海洋牧场的高质量发展保驾护航。     

Marine spatial planning in Scotland. Levelling the playing field?

Marine spatial planning (MSP) is the leading tool for managing human activities at sea. It is designed to assist in decision making for marine resource access and use by considering the actions of those using the resources, interactions between these groups, and their cumulative impact on the natural environment. Being informed by ecosystem based management, MSP recognises that socio-natural systems are complex and that stakeholder and public input are key components of well-informed decision making. Therefore, MSP is rooted in the principles of good governance, including those of participation and transparency. This paper considers MSP processes in Scotland's inshore waters in the context of these good governance principles. The focus is on the institutional arrangements that allow stakeholders and the public to contribute to planning Scotland's seas and coasts. Whilst acknowledging the significant challenges faced by planners, and the work conducted so far, this research suggests that improvements could be made in how – and when – engagement takes place. It appears that at an early stage of introducing MSP in Scotland powerful stakeholders shaped the images, values and principles that guide it, and that including a broader range of actors early on might positively affect the legitimacy and acceptance of MSP in its later stages. The current institutional arrangements do not appear to allow for this. Ultimately, MSP in Scotland is in danger of institutionalising – and thus legitimising – existing power relations between marine resource users, and it does little to level the playing field.     

A communicative turnaround: Shifting the burden of proof in European fisheries governance

Current and prospective changes in European fisheries governance suggest not only a “communicative turn” but a complete turnaround in the relationships between government, science, and the fishing industry. At the heart of these changes are the so-called Regional Advisory Councils (RACs) and the idea of partially replacing the burden of proof on the resource users (fishing industry). This change entails new forms of interaction between fishers’ representatives, other stakeholders (e.g. NGOs), policy-makers and scientists. By drawing on experiences from the Baltic Sea RAC, the analysis focuses on two aspects of fisheries governance: institutional design and the process of negotiation and decision-making. It is concluded that to allow for a partial shift in the burden of proof, stakeholder organisations such as RACs need to adapt both institutionally as well as process-wise to enable a more constructive and responsible fisheries governance system.     

An Ecosystem Based Fisheries Management framework: the efficient,regional-level planning tool for management agencies

The value of applying a regional level, Ecosystem Based Fisheries Management (EBFM) framework, which is a step-wise, hierarchical, risk-based approach, was tested on the West Coast Bioregion of Western Australia. With structured stakeholder input, over 600 ecological, social, economic and governance issues were initially identified for the region. This complexity was reduced to a level useful for management by consolidating the individual risks into 60 regional-level risks, with a multi-criteria analysis used to integrate the ecological, social and economic risks into just 24 Departmental-level priorities, which ranged from very low to urgent. Given this success, EBFM-based priorities now form the basis for the Department’s budget planning process, plus the framework is providing a critical link between fishery level issues and the broader processes undertaken by other marine based agencies. The EBFM framework is a significant step forward for the integrated management of natural resources by enabling all assets and issues relevant to stakeholders and government to be holistically considered at a regional level.     

How to dance? The tango of stakeholder involvement in marine governance research

The added value of involving stakeholders in research, especially related to marine governance, seems to be understood today by many researchers and policy makers. This is clearly reflected by the many (EU) research calls explicitly asking for stakeholder involvement. The way in which to involve stakeholders in a meaningful way is however not all that clearly defined. In the EU funded project Options for Delivering Ecosystem-Based Marine Management (ODEMM) an explicit question was the development of options for alternative governance settings, including stakeholder involvement, to implement the Marine Strategy Framework Directive in the EU. In order to arrive at these possible alternative governance set-ups the ODEMM project developed a layered methodology, including structured and unstructured interviews, a survey and roundtable discussions to develop diverse governance options for future ecosystem based models at the regional seas. This paper describes the methodologies used, compares them with best practice from literature, and finally classifies the approach as a joint knowledge production, a tango, in which scientists take the lead but need the stakeholders to come to a dance.     

Stakeholders’ expectations towards a proposed marine protected area: A multi-criteria analysis of MPA performance criteria

In order to enable effective management of marine protected areas (MPAs), desired MPA achievements need to be identified as early as possible for the development of relevant and clear management goals, objectives and conservation targets. As the definition of MPA success is a social construct, the involvement of multiple groups in this process including government agencies, stakeholders, and other interested parties is increasingly advocated. This study investigates diverse groups’ opinions on the performance of a proposed National Marine Conservation Area (NMCA) on the West coast of Canada prior to its establishment. In order to analyse and quantify the importance of MPA performance criteria among multiple stakeholder groups, the Analytical Hierarchy Process (AHP) is applied. Findings reveal that marine stakeholder groups have distinct preferences for future MPA performance. Most differences are obvious between user and non-user groups. The study also finds that respondents’ characteristics other than stakeholder groups affiliations influence expectations towards the proposed MPA including livelihood dependency on the marine environment, amount of time spent in the area, and engagement in fishing activities.     

Ecological knowledge interactions in marine governance in Kenya

Proponents of integrated, collaborative, and adaptive governance advocate the inclusion of a diversity of stakeholders and their knowledge and values in governance processes. This paper examines knowledge interactions at different scales of decision-making within two marine social-ecological systems in southern Kenya. Ecological knowledge systems are shown to be diverse and fluid even within broad conceptual classifications. Knowledge interactions at the local level are mediated by socio-cultural, institutional, and historical factors, whilst knowledge integration within district to national levels is primarily structured by institutional factors linked to centralised decision-making. In policy arenas, knowledge bounded to the marine environment is subjugated by knowledge dealing with terrestrial parks, inland fisheries, and wildlife tourism.