Fisheries and coastal governance as a wicked problem

Inspired by Rittel and Webber [Dilemmas in a general theory of planning. Policy Sciences 1973;4:155–69], it is argued that fisheries and coastal governance is confronted with problems that are inherently “wicked.” Problems are wicked (as opposed to “tame”) when they are difficult to define and delineate from other and bigger problems and when they are not solved once and for all but tend to reappear. Wicked problems have no technical solution, it is not clear when they are solved, and they have no right or wrong solution that can be determined scientifically. Instead, for wicked problems governance must rely on the collective judgment of stakeholders involved in a process that is experiential, interactive and deliberative. In this paper, the wicked problem is identified as a governability issue, recognizing that there are limitations to how rational and effective fisheries and coastal governance can possibly be. The paper offers a framework which could help us locate the wicked problems within the fisheries and coastal governance system, as well as examine their governability.     

The impact of precautionary quota constraints on the composition of multispecies harvest portfolios

Multi species fisheries management requires managers to consider the impact of fishing activities on several species. Precautionary harvest quota restrictions for single species causes displaced effort to be redirected toward alternative species and single-species measures can therefore have a multi-species impact. Portfolio theory and the expected utility hypothesis is used to predict changes in fishers' targeting choices in the Hake–Monkfish–Megrim and Cod–Haddock–Whiting fisheries when species-specific hypothetical precautionary constraints are implemented. Results suggest that the utility maximising assumption in a mean variance optimisation framework gives a good approximation of fishers' objective function in these two fisheries. Changes in the species composition of fishers' optimal harvest portfolio (given implementation of the hypothetical precautionary measures) suggest significant displacement of fleet into alternative fisheries occurs when barriers to such alternation do not exist.     

Catch shares have not led to catch-quota balancing in two North American multispecies trawl fisheries

Catch shares, where annual catch limits are divided among individuals, communities or cooperatives, are a commonly used fisheries management strategy to increase profits and reduce overcapitalization. Usually these quota shares can be sold or leased, which is theorized to allow for greater utilization of fleet-wide quota. However, this catch-quota balancing may not be achieved in multispecies trawl fisheries where it is difficult to selectively target valuable species while avoiding overfished species. Two similar catch-share-managed, multispecies trawl fisheries were compared to evaluate whether catch shares lead to catch-quota balancing. The U.S. West Coast Groundfish fishery has several species with low total allowable catches (TACs) while the Canadian British Columbia Trawl fishery has comparatively higher TACs. Results indicate that the West Coast fishery had a statistically significant decrease in catch-quota ratios from 0.41 in the three years before catch shares to 0.29 in the three years after catch shares. In contrast, the BC fishery experience no statistically significant change in fishery-wide average catch-quota ratios, which were 0.70 in the three years before and 0.62 in the three years after catch shares. In the West Coast fishery, the risk of exceeding quotas for some species may be so high that fishers are unable to achieve high degrees of catch-quota balancing and instead focus on species that can be easily selected with changes in fishing behavior. Multispecies fisheries management has direct tradeoffs between maximizing yield and achieving conservation goals, and these results may highlight the tradeoff between rebuilding overfished species by reducing TACs, and the achievement of catch-quota balancing.     

Overview of West African fisheries under climate change: Impacts,vulnerabilities and adaptive responses of the artisanal and industrial sectors

Climate change affects ocean conditions, fish stocks and hence fisheries. In West Africa, climate change impacts on fisheries were projected to be mainly negative through multi-facet ways. However, analysis of adaptation responses of fishers to climate change impacts is scarce. This paper reviews the impacts on climate change on fisheries in West Africa and discusses the potential adaptation strategies adopted by both the artisanal and industrial fishing sectors. Overall, climate change and over-exploitation have altered species composition of fisheries catches in West Africa. The effect of ocean warming on fisheries is indicated by the increase in dominance of warmer water species in the landings, shown from an increase in Mean Temperature of Catch, in the region. Climate change induced changes in potential catch and species composition, which inherently have similar symptoms as over-exploitation, are expected to have repercussions on the economic and social performance of fisheries. Both artisanal and industrial sectors may adapt to these changes mainly through expansion of fishing ground that increases operation costs. Our results highlight that historical changes in target species are more common in industrial than artisanal fisheries. This result challenges the prevailing assumption that artisanal fisheries, given their limited movement capacity, would adapt to climate change by shifting target species and/or gear type.     

Beyond sustainability: is government obliged to increase economic benefit from fisheries in the face of industry resistance?

Substantial economic opportunities have been identified in many Australian fisheries but may remain unimplemented due to the perception that the role of government is to ensure harvests are biologically sustainable, while economic decisions should be left to the commercial industry. This paper explores the role of government in driving changes that increase revenue and profit from fisheries (termed economic benefit). Australian fisheries resources are managed by eight different jurisdictions. While each have separate legislation, there is invariably a responsibility to manage on behalf of, and to the benefit of the public, who are the owners of the resource. This paper uses case studies to explore how government can struggle to determine the public interest, separate this from private interests and then implement management changes to ensure the public utility is maximised. Common problems were: (i) overarching economic objectives, which define who should benefit, were often ambiguous and open to interpretation; (ii) the public interest was usually abstract and often under-represented in decision-making processes, (in contrast to industry, who have direct representation); (iii) special interest groups were often able to lobby against changes; and (iv) government was often reluctant to seize opportunities to increase economic benefit when there was significant industry opposition to management changes. In drawing attention to these challenges and how they have been overcome historically, it is argued that government has both a role and requirement under their legislative objectives to take the lead in implementing measures that increase the economic benefit from Australian fisheries.     

Long-term changes in the fish community structure from the Tsushima warm current region of the Japan/East Sea with an emphasis on the impacts of fishing and climate regime shift over the last four decades

Japanese fisheries production in the Japan/East Sea between 1958 and 2003 increased to their peak (1.76 million tons) in the late 1980s and decreased abruptly with the collapse of Japanese sardine. Catch results for 58 fisheries and various environmental time-series data sets and community indices, including mean trophic level (MTL) and Simpson’s diversity index (DI), were used to investigate the impacts of fishing and climate changes on the structure of the fish community in the Tsushima warm current (TWC) region of the Japan/East Sea. The long-term trend in fisheries production was largely dependent on the Japanese sardine that, as a single species, contributed up to 60% of the total production in the Japanese waters of the Japan/East Sea during the late 1980s. Excluding Japanese sardine, production of the small pelagic species was higher during 1960s and 1990s but lower during 1970s and 1980s. This variation pattern generally corresponds with the trend in water temperature, warmer before early 1960s and after 1990s but colder during 1970s and 1980s. The warm-water, large predatory fishes and cold water demersal species show opposite responses to the water temperature in the TWC region, indicating the significant impact of oceanic conditions on fisheries production of the Japan/East Sea. Declines in demersal fishes and invertebrates during 1970s and 1980s suggested some impact of fishing. MTL and DI show a similar variation pattern: higher during 1960s and 1990s but lower during 1970s and 1980s. In particular, the sharp decline during the 1980s resulted from the abundant sardine catches, suggesting that dominant species have a large effect on the structure of the fish community in the Japan/East Sea. Principal component analysis for 58 time-series data sets of fisheries catches suggested that the fish community varied on inter-annual to inter-decadal scales; the abrupt changes that occurred in the mid-1970s and late 1980s seemed to correspond closely with the climatic regime shifts in the North Pacific. These results strongly suggest that the structure of the fish community in the Japan/East Sea was largely affected by climatic and oceanic regime shifts rather than by fishing. There is no evidence showing “fishing down food webs” in the Japan/East Sea. However, in addition to the impacts of abrupt shifts that occurred in the late 1980s, the large predatory and demersal fishes seem to be facing stronger fishing pressure with the collapse of the Japanese sardine.     

The MSY concept in a multi-objective fisheries environment – Lessons from the North Sea

One of the most important goals in current fisheries management is to maintain or restore stocks above levels that can produce the maximum sustainable yield (MSY). However, it may not be feasible to achieve MSY simultaneously for multiple species because of trade-offs that result from interactions between species, mixed fisheries and the multiple objectives of stakeholders. The premise in this study is that MSY is a concept that needs adaptation, not wholesale replacement. The approach chosen to identify trade-offs and stakeholder preferences involved a process of consulting and discussing options with stakeholders as well as scenario modelling with bio-economic and multi-species models. It is difficult to intuitively anticipate the consequences of complex trade-offs and it is also complicated to address them from a political point of view. However, scenario modelling showed that the current approach of treating each stock separately and ignoring trade-offs may result in unacceptable ecosystem, economic or social effects in North Sea fisheries. Setting F_MSY as a management target without any flexibility for compromises may lead to disappointment for some of the stakeholders. To treat F_MSY no longer as a point estimate but rather as a “Pretty Good Yield” within sustainable ranges was seen as a promising way forward to avoid unacceptable outcomes when trying to fish all stocks simultaneously at F_MSY. This study gives insights on how inclusive governance can help to reach consensus in difficult political processes, and how science can be used to make informed decisions inside a multi-dimensional trade-off space.     

A preliminary assessment of threats to arctic marine mammals and their conservation in the coming decades

Over the next several decades, arctic marine mammals will face threats from six areas of human influence: climate change, environmental contaminants, offshore oil and gas activities, shipping, hunting, and commercial fisheries. This paper reviews these factors, the nature and magnitude of the threats they pose, current scientific understanding and management of those threats, and the potential for effective conservation action. Climate change, offshore oil and gas activities, and commercial fisheries likely pose the greatest threats. Addressing the combined effects of all six factors, however, will be particularly difficult but essential to prevent declines beyond those that have already occurred.     

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.     

Economic impacts of seafood production growth targets in Ireland

This paper examines the potential economic impact of the Irish government strategy for the development of the seafood sector in Ireland, Food Harvest 2020 (FH2020). The seafood industry accounts for a large proportion of income and employment in peripheral coastal areas. Many of these regions are predominantly rural and they are largely dependent on the primary fisheries sector. Moreover, the services and retail businesses in these areas are heavily dependent on direct spending from the fisheries, aquaculture and seafood processing sectors. A social accounting matrix (SAM) approach with (1) set to zero purchase coefficients for all directly impacted industries and (2) changes in output converted to final demand shocks is used to calculate the economic and employment impact on the rest of the economy from an increase in the output in the fisheries, aquaculture and seafood processing sectors in Ireland. The results suggest fisheries sectors have strong links with the rest of the economy hence an important economic impact from a policy perspective.     

An ecological perspective on the deployment and design of low-crested and other hard coastal defence structures

Coastal areas play a crucial role in the economical, social and political development of most countries; they support diverse and productive coastal ecosystems that provide valuable goods and services. Globally flooding and coastal erosion represent serious threats along many coastlines, and will become more serious as a consequence of human-induced changes and accelerated sea-level rise. Over the past century, hard coastal defence structures have become ubiquitous features of coastal landscapes as a response to these threats. The proliferation of defence works can affect over half of the shoreline in some regions and results in dramatic changes to the coastal environment. Surprisingly little attention has been paid to the ecological consequences of coastal defence. Results from the DELOS (Environmental Design of Low Crested Coastal Defence Structures, EVK3-CT-2000-00041) project indicate that the construction of coastal defence structures will affect coastal ecosystems. The consequences can be seen on a local scale, as disruption of surrounding soft-bottom environments and introduction of new artificial hard-bottom habitats, with consequent changes to the native assemblages of the areas. Proliferation of coastal defence structures can also have critical impacts on regional species diversity, removing isolating barriers, favouring the spread of non-native species and increasing habitat heterogeneity. Knowledge of the environmental context in which coastal defence structures are placed is fundamental to an effective management of these structures as, while there are some general consequences of such construction, many effects are site specific. Advice is provided to meet specific management goals, which include mitigating specific impacts on the environment, such as minimising changes to surrounding sediments, spread of exotic species or growth of nuisance species, and/or enhancing specific natural resources, for example enhancing fish recruitment or promoting diverse assemblages for eco-tourism. The DELOS project points out that the downstream effects of defence structures on coastal processes and regional-scale impacts on biodiversity necessitate planning and management at a regional (large coastline) scale. To effectively understand and manage coastal defences, environmental management goals must be clearly stated and incorporated into the planning, construction, and monitoring stages.     

Choosing a fishery’s governance structure using data poor methods

Multi-species fisheries are complex to manage and the ability to develop an appropriate governance structure is often seriously impeded because trading between sustainability objectives at the species level, economic objectives at the fleet level, and social objectives at the community scale, is complex. Many of these fisheries also tend to have a mix of information, with stock assessments available for some species and almost no information on other species. The fleets themselves comprise fishers from small family enterprises to large vertically integrated businesses. The Queensland trawl fishery in Australia is used as a case study for this kind of fishery. It has the added complexity that a large part of the fishery is within a World Heritage Area, the Great Barrier Reef Marine Park, which is managed by an agency of the Australian Commonwealth Government whereas the fishery itself is managed by the Queensland State Government. A stakeholder elicitation process was used to develop social, governance, economic and ecological objectives, and then weight the relative importance of these. An expert group was used to develop different governance strawmen (or management strategies) and these were assessed by a group of industry stakeholders and experts using multi-criteria decision analysis techniques against the different objectives. One strawman clearly provided the best overall set of outcomes given the multiple objectives, but was not optimal in terms of every objective, demonstrating that even the “best” strawman may be less than perfect.     

Regimes and the history of the major fisheries off Canada's west coast

The major fisheries on the Pacific coast of Canada can be grouped into 12 species that have consistently represented about 80–90% of the total catch from the past to the present. A review of population dynamics of these species indicates that climate and the ocean environment have a major impact on their productivity. We review the history of Canada's Pacific coast fishery to show that trends in catch were similar to trends in the climate and ocean environment. Decadal scale patterns in climate and the ocean are termed regimes and we show that it is the regime scale of climate variability that most influences the long-term trends in the catches in these major fisheries. Ignoring the impacts of regime shifts on the abundance trends in the future could result in collapses of major fisheries. The difficulty of knowing when a regime shift will occur may be overcome as we discover more about the mechanisms that affect the decadal-scale trends in the rotational velocity of the solid earth which is measured as the length of day (LOD).     

Venue shifts and policy change in EU fisheries policy

Over the past two decades profound changes have taken place in the European Union's (EU) fisheries policy. Partly these changes have occurred within the EU's Common Fisheries Policy itself, but partly policy change has been effected by the application of environmental legislation and policy instruments to fisheries issues. This article argues that the process of policy change in EU fisheries policy can best be understood in terms of the interaction of policy images and policy venues that is at the core of the punctuated equilibrium theory of policy-making. As a result of the rise of a biodiversity perspective on fisheries issues, environmental policy-makers have become active in fisheries issues, which has led to profound changes in both the content of fisheries policies and the institutional organisation around this issue area.     

Regime shifts in upwelling ecosystems: observed changes and possible mechanisms in the northern and southern Benguela

A regime shift is considered to be a sudden shift in structure and functioning of a marine ecosystem, affecting several living components and resulting in an alternate state. According to this definition, regime shifts differ from species replacement or alternation of species at similar trophic levels, whereby the ecosystem is not necessarily significantly altered in terms of its structure and function; only its species composition changes. This paper provides an overview of regime shifts, species replacements and alternations that have been observed in the northern and southern Benguela ecosystems over the past few decades. Bottom-up control, initiating and sustaining regime shifts or species replacements via environmental forcing, is documented for both the southern and the northern Benguela ecosystems. Fishing (a case of top-down control) appears to have played an important role in regime shift processes in the Namibian ecosystem. Very low biomass levels of exploited fish stocks associated with less efficient energy transfer in the northern Benguela are indicative of a regime shift. Very high biomass levels have been reached in the southern Benguela in the 2000s. However the alternation between sardine and anchovy that has been observed in the southern Benguela over the last two decades appears not to have had major effects on the overall functioning of the ecosystem. The consequences of regime shifts for exploitation are highlighted, suggesting that fisheries managers should move towards a more effective ecosystem approach to fisheries.     

Fishing strange data in national fisheries statistics of Greece

Fisheries statistics provided by the Hellenic Statistical Authority (HELSTAT) have been often criticized for unusual estimates in landings and fishing effort data and for limitations in the sampling methodology, although there is no study on the identification of these biased and misreporting estimates. In the present study the landings per species and fishing subarea, as well as the fishing effort data per fishing gear reported by HELSTAT were analysed over the period 1982–2010. The results showed abrupt changes of both the recorded species and species landings per subarea, spurious correlations of landings among different species groups and misreporting estimates in the number of fishing vessels per fishing gear. These might be likely attributed to: (a) differences of the HELSTAT administrative infrastructures at local scale, (b) changes in the sampling protocol followed by HELSTAT, (c) reporting faults made by HELSTAT, (d) fisheries restrictive measures at local basis, (e) other factors that increased the bias and the uncertainties of HELSTAT fisheries data and related to socio-economic (i.e. fuel price) and operational (i.e. spatial structure of the fisheries fleet) aspects and/or (f) to environmental changes that might possibly affected fisheries dynamics. The present study aims to the improvement of the effectiveness of the national fisheries statistics as pinpointed by Common Fisheries Policy in order to avoid imprecise and/or biased estimations about the state of the fisheries.     

Variations in the abundance of fisheries resources and ecosystem structure in the Japan/East Sea

Evidence supports the hypothesis that two climatic regime shifts in the North Pacific and the Japan/East Sea, have affected the dynamics of the marine ecosystem and fisheries resources from 1960 to 2000. Changes in both mixed layer depth (MLD) and primary production were detected in the Japan/East Sea after 1976. The 1976 regime shift appears to have caused the biomass replacement with changes in catch production of major exploited fisheries resources, including Pacific saury, Pacific sardine and filefish. Both fisheries yield and fish distribution are reflected in these decadal fluctuations. In the 1960s and 1990s, common squid dominated the catches whereas in the 1970s and 1980s, it was replaced by walleye pollock. In the post-1988 regime shift, the distribution of horse mackerel shifted westward and southward and its distributional overlap with common mackerel decreased. The habitat of Pacific sardine also shifted away from mackerel habitats during this period. To evaluate changes in the organization and structure of the ecosystem in the Japan/East Sea, a mass-balanced model, Ecopath, was employed. Based on two mass-balanced models, representing before (1970–75) and after (1978–84) the 1976 regime shift, the weighted mean trophic level of catch increased from 3.09 before to 3.28 after. Total biomass of species groups in the Japan/East Sea ecosystem increased by 15% and total catch production increased by 48% due to the 1976 regime shift. The largest changes occurred at mid-trophic levels, occupied by fishes and cephalopods. The dominant predatory species shifted from cephalopods to walleye pollock due to the 1976 regime shift. It is concluded that the climatic regime shifts caused changes in the structure of the ecosystem and the roles of major species, as well as, large variations in biomass and production of fisheries resources.     

Influences of fisheries management measures on biological characteristics of threadfin bream (Nemipterus virgatus) in the Beibu Gulf,South China Sea

Long-term variations in population structure, growth, mortality, length at median sexual maturity, and exploitation rate of threadfin bream (Nemipterus virgatus) are reported based on bottom trawl survey data collected during 1960–2012 in the Beibu Gulf, South China Sea. Laboratory-based analyses were conducted on 16791 individuals collected quarterly in eight different sampling years. Average body length, estimated asymptotic length, and percentage of large individuals have decreased significantly with the growth of marine catch and fishing power, indicating individual miniaturization of this fish species. Estimated exploitation rates indicate that the N. virgatus stock in the Beibu Gulf was moderately exploited in 1960 and 1962 and overexploited after 1992. This stock was taking a good turn in status in 2012, with the lowest exploitation rate since 1992 and ceased downward trend in length indexes. These results suggest that management measures to reduce fishing pressure may have a positive influence on the biological characteristics of this commercial fish species. Biological characteristics of most commercial fish species have phenotypic plasticity and might change over years in response to fisheries management. Therefore, attentions should be paid on variations in fish biological characteristics, when evaluating the effectiveness of current measures to control the total catch for all fisheries.     

Environmental controls on food web regimes: A fluvial perspective

Because food web regimes control the biomass of primary producers (e.g., plants or algae), intermediate consumers (e.g., invertebrates), and large top predators (tuna, killer whales), they are of societal as well as academic interest. Some controls over food web regimes may be internal, but many are mediated by conditions or fluxes over large spatial scales. To understand locally observed changes in food webs, we must learn more about how environmental gradients and boundaries affect the fluxes of energy, materials, or organisms through landscapes or seascapes that influence local species interactions. Marine biologists and oceanographers have overcome formidable challenges of fieldwork on the high seas to make remarkable progress towards this goal. In river drainage networks, we have opportunities to address similar questions at smaller spatial scales, in ecosystems with clear physical structure and organization. Despite these advantages, we still have much to learn about linkages between fluxes from watershed landscapes and local food webs in river networks. Longitudinal (downstream) gradients in productivity, disturbance regimes, and habitat structure exert strong effects on the organisms and energy sources of river food webs, but their effects on species interactions are just beginning to be explored. In fluid ecosystems with less obvious physical structure, like the open ocean, discerning features that control the movement of organisms and affect food web dynamics is even more challenging. In both habitats, new sensing, tracing and mapping technologies have revealed how landscape or seascape features (e.g., watershed divides, ocean fronts or circulation cells) channel, contain or concentrate organisms, energy and materials. Field experiments and direct in situ observations of basic natural history, however, remain as vital as ever in interpreting the responses of biota to these features. We need field data that quantify the many spatial and temporal scales of functional relationships that link environments, fluxes and food web interactions to understand how they will respond to intensifying anthropogenic forcing over the coming decades.     

Fleet communication to abate fisheries bycatch

Fleet communication systems report near real-time observations of bycatch hotspots to enable a fishery to operate as a coordinated “One Fleet” to substantially reduce fleet-wide capture of protected bycatch species. This benefits the bycatch species per se, reduces waste, and can provide economic benefits to industry by reducing risk of exceeding bycatch thresholds and causing future declines in target species catch levels. We describe case studies of fleet communication programs of the US North Atlantic longline swordfish fishery, US North Pacific and Alaska trawl fisheries, and US Alaska demersal longline fisheries, and identify alternative fleet communication program designs to reduce fisheries bycatch. Evidence supports the inference that these three fleet communication programs substantially reduced fisheries bycatch and provided economic benefits that greatly outweighed operational costs. Fleet communication may be appropriate in fisheries where there are strong economic incentives to reduce bycatch, interactions with bycatch species are rare events, adequate onboard observer coverage exists, and for large fleets, vessels are represented by a fishery association.