Complementary roles of European and national institutions under the Common Fisheries Policy and the Marine Strategy Framework Directive

Exploited fish and shellfish stocks in European marine waters underlie the Common Fisheries Policy (CFP). The next round of reform of the CFP is due for completion in 2012. The exploitation at maximum sustainable yield (MSY) may be confirmed as the common environmental objective for good environment status (GES) of exploited fish and shellfish stocks of the reformed CFP and the Marine Strategy Framework Directive (MSFD). The foreseen time horizon to achieve or maintain GES by 2020 appears inconsistent with the World Summit on Sustainable Development UN agreement in 2002, which stipulates that maintenance or restoring of stocks to produce MSY be realized by 2015. The MSFD requires instead that by 2015 the national programmes of measures be designed in order to become operational the following year (2016).     

Rebuilding EU fish stocks and fisheries,a process under way?

As a signatory to the World Summit on Sustainable Development (WSSD), the European Union (EU) has made a commitment to maintain or restore fish stocks to levels that can produce the maximum sustainable yield (MSY), and where possible not later than 2015. So how has the EU's Common Fisheries Policy (CFP) fared in trying to achieve this objective? The development of the status of 41 commercially exploited fish stocks from the North East Atlantic, North Sea and Baltic Sea (FAO Area 27) was analysed together with the economic performance of the fleets exploiting those stocks. The analyses indicate that the exploitation status for many of the stocks has greatly improved during the last 10 years while the economic performance of the fleets over the same period has been highly variable. The main economic indicators (gross value added (GVA) and operating cash flow (OCF)) have gradually improved at a time when the general economic situation, which has a great influence on the markets, costs and purchase power, has worsened. While recognizing that much remains to be done to achieve the objective of the WSSD, the analyses indicate that actions implemented in the last decade under the CFP have led to an improvement in the status of many commercially important fish stocks and their fleets towards levels that are closer to those producing MSY.     

The sensitivity of long-term yield targets to changes in fishery age-selectivity

Maximum sustainable yield (MSY) has been adopted as the primary management goal by several inter-government fishery organisations, and in the United States it forms the cornerstone of federal fishery management policy. MSY became a strategic goal for the management of Europe's fisheries following the resolution of the World Summit on Sustainable Development in 2002 to restore or maintain fish stocks to MSY levels by 2015. Calculation of MSY requires information on the rate at which biomass increases through growth and reproduction and the rate at which it decreases through natural mortality and fishing. Population-selection, which measures the age-specific rates of fishing mortality, is a key component for the calculation of yield as a function of fishing mortality and MSY, yet selection rarely features in either management advice or sensitivity analyses. Effective management of selection can potentially lead to increases in long-term yield, but before taking action managers need to understand what long-term increases are possible. Using a hypothetical stock, equilibrium yield curves were calculated for three scenarios in which the shape of the population-selection curve varied. The results illustrate the potential extent of variation in MSY and the corresponding fishing mortality required to achieve it (F_MSY) that may result solely due to changes in population selectivity. They show that relatively subtle changes in selection can produce substantial differences in MSY and F_MSY. The results are discussed with specific reference to the development of long-term management targets and the mechanisms by which managers might try to influence population-selection.     

Distribution of the burden of fisheries regulations in Europe: The north/south divide

The Common Fisheries Policy (CFP) is a priority area of the European Union's Better Regulation agenda. Understanding the spatial variation in the application of the policy and the reasons behind these differences would provide insights into policy making in different socioeconomic and cultural settings that will assist in better regulation. The CFP aqcuis (the body of European Union law accumulated thus far) was analysed by creating a database composed of pre-defined elements from each obligation. Distinct differences are apparent in the ‘burden’ imposed by regulations in the Northern and Southern waters. However, a combination of a timeline of fish landings and the accumulation of the CFP regulations shows that despite the increase in the number of regulations this has not led to the anticipated reduction in landings. Historical, biological and geopolitical differences between the two major marine regions of the EU are discussed in terms of the impact they have had on the formation of the different fisheries management models in the different regions. Finally, the elements forming these models are discussed in terms of successes and failures in the context of the 2012 CFP reform.     

Incentives,social–ecological feedbacks and European fisheries

The European Common Fisheries Policy (CFP) has failed to deliver on social, economic and ecological goals. This failure is in part the result of a number of social–ecological feedback mechanisms. The policy is currently undergoing reform, with unknown practical outcomes. Here, relatively successful fisheries policies outside the European Union are reviewed. Through interviews and workshops with scientists, managers and other stakeholders, complemented with literature reviews, practices that can create incentives for long-term sustainability are investigated. The focus is on how the provision of clear and trusted scientific evidence can stimulate defensible decisions, in turn creating incentives for compliance, leading to positive social–ecological outcomes. Despite differences between Europe and the investigated case studies, the prospects of an increased regionalization within the European CFP provides the best starting point for implementing best practice identified in this study.     

Swedish coastal herring fisheries in the wake of an ITQ system

The European common fisheries policy (CFP) advocates measures to sustain small-scale fisheries; hence, in the European Commission's proposal for a reformed CFP, these are exempted from a mandatory system with tradable fishing concessions. This opens up for management actions designed for small-scale fisheries, but also implies new management issues. This article provides insights into the topic based on a Swedish small-scale herring fishery in the western Baltic Sea that was exempted from an ITQ-system. The fishery has been profitable since the system was introduced, and the increasing effort of both incumbent fishermen and new entrants implies a situation where fishermen compete for a limited quota. The migratory pattern of the herring implies high densities in the southern parts of the fishing areas during spring and in the northern parts during autumn. This forms the basis for two different fisheries in the area, as well as for the current management proposal to divide the quota into a spring and an autumn part. This and other management proposals are discussed in the paper. The main conclusion from the case study is that, when exempting a fishery from tradable fishing concessions, it is important to build other institutions dealing with the fundamental problem of access to the quota. Failure to do so might result in an over-capacity issue and threaten the long-run development of an otherwise successful small-scale fishery.     

Estimating MSY and MEY in multi-species and multi-fleet fisheries,consequences and limits: an application to the Bay of Biscay mixed fishery

Most worldwide fish stocks are overexploited, and so exploited beyond the Maximum Sustainable Yield (MSY) and the Maximum Economic Yield (MEY). Not exploiting fisheries resources at MSY or MEY leads to the loss of production and rents from the fisheries. A large part of the EU fisheries are managed based on single species stock assessments; however, in reality, most species are caught together with other species and by different fleets. In multi-species and multi-fleet fisheries, single species assessments, and consequently MSY and MEY reference points, are often not valid, and so the catch recommendations. In this paper it is investigated the MSY and MEY estimation in multi-species and multi-fleet fisheries in comparison to single species assessments. Analyses are applied to the Bay of Biscay demersal fishery using the IAM bio-economic model. The impact of exploiting at MSY and MEY on the optimal effort allocation between fleets with different exploitation patterns and economic structures is analyzed. When accounting for the multi-species nature of the fishery, MSY landings are 0.4% to 2.7% lower than the single species simulations estimates. When accounting for the multi-fleet nature of the fishery, MSY landings are 27.2% to 30.2% higher than the single-fleet estimates. When considering the multi-fleet characteristics, MEY landings are 6.6% higher and profits are 66.5% higher than in the single-fleet simulation. Optimal effort at MEY is lower than at MSY, but when accounting for multi-fleet the optimal effort decreases for some fleets while increases for gillnetters. The results also provide an estimation of the profits at MEY (or costs of not being at MEY). Profits can be then up to 10.7 times larger than the current profits (256 million Euros compared to the current 24 million Euros).     

The 2002 reform of the Common Fisheries Policy's system of governance—rhetoric or reality?

The 2002 Reform of the Common Fisheries Policy (CFP) was claimed to be a radical overhaul of a failing system. Several EU fish stocks—particularly North Sea cod—had reached dangerously low levels, and there was widespread dissatisfaction with the way in which the CFP was operating. The European Commission took the opportunity of the legal requirement to review some features of the CFP (principally access provisions) in 2002, to undertake a broader reappraisal of the CFP. One of the features of this reappraisal was an attempt to improve the CFP's system of governance by increasing the amount of stakeholder participation, decentralisation, transparency, accountability, effectiveness and coherence. In this paper, the conclusion is reached that this attempt to improve the quality of governance in the 2002 CFP reform package has been more rhetorical than real.     

Assessment and management of Cape horse mackerel Trachurus capensis off Namibia based on a fleet-disaggregated age-structured production model

The Cape horse mackerel stock off Namibia is assessed using a fleet-disaggregated age-structured production model including historical International Commission for the Southeast Atlantic Fisheries (ICSEAF) and current data. Data from acoustic biomass surveys, on commercial catch per unit effort and on commercial catch-at-age, were used to estimate current stock status over a range of model specifications. A management tool, the so-called management monitor graph, was introduced in order to track past management relative to stock status. Target, limit and precautionary reference points, decision rules and harvesting strategies, according to which the stock should be managed, are described and tested. The target reference point was set at maximum sustainable yield (MSY), the precautionary reference point at 80% of MSY and the limit reference point at 30% of MSY. Owing to some inconsistencies in the dataseries, evaluation of the current state of the resource is challenging, but estimates are that the resource is around the MSY level, somewhere between 250 000 and 300 000 t.     

The EU landing obligation and European small-scale fisheries: What are the odds for success?

A landing obligation was formally implemented in the European Union (EU) for the first time, as part of the recent reform of the EU Common Fisheries Policy (CFP). Given the reasonable success of the landing obligation in some countries such as the Faroe Islands, Iceland and Norway, this policy is seen as a viable approach to tackle the long-recognized discarding problem in EU waters. However, there has been some debate on whether there is sufficient evidence to support the feasibility of such a measure in the EU-CFP. The EU landing obligation will implicitly include all small-scale fisheries (SSF) provided the species captured are subject to catch limits or minimum sizes (in the case of the Mediterranean). SSF were included irrespective of the fact that the discarding problem in the EU has been historically associated with medium- to large-scale fleets (in particular largely mixed species trawl fisheries). Additionally, past experiences with a discard ban policy are still limited to specific countries and/or specific fisheries. This paper examined the appropriateness and feasibility of the recently implemented EU landing obligation in SSF. The effects in the long-term are unpredictable, but available evidence suggests that in the short to medium-term a landing obligation is likely to bring more negative social, economic and ecological impacts than benefits.     

基于增殖放流的定栖性种类剩余产量模型及其模拟分析

为应对渔业资源的日益衰退,增殖放流成为了目前补充资源、维持资源可持续利用的主要手段之一。增殖放流实施后,渔业资源的可持续特征是学者们普遍关心,却又无法使用传统剩余产量模型有效解决的问题。本研究基于传统的Schaefer剩余产量模型,提出了一个适用于增殖放流情况下的剩余产量模型(增殖剩余产量模型),模拟分析了不同增殖放流和捕捞策略对模型的影响。该模型的形式与Schaefer剩余产量模型相似,但加入了描述增殖群体增长特征的参数—有效增殖率,以此来表示增殖放流的群体对产量产生的影响。结果显示,合理的增殖放流可以起到增加最大可持续产量的效果,使用增殖剩余产量模型能够得到合理的最大可持续产量等关键指标的估算结果。与无增殖放流情况相比,在增殖放流影响下,海域原存资源(海域原本存在的群体)达到最大可持续产量时所需的生物量较小,而可承受的捕捞努力量则有所增加。增殖剩余产量模型所反映的原存群体和增殖群体之间会产生抑制作用。在该作用影响下,不同增殖放流和捕捞策略会对模型的评估结果产生影响。与传统模型相比,该模型将增殖放流纳入最大可持续产量的评估过程,提高了增殖放流影响下最大可持续产量评估的准确性,可用于诸如海洋牧场等边界较清晰的海域内增殖定栖性种类最大可持续产量的估算。     

Towards sustainable fisheries subsidies: Entering a new round of reform under the Common Fisheries Policy

On 22 April 2009 the European Commission published its ‘Green Paper on the Reform of the Common Fisheries Policy’. The Green Paper points out a contradiction in policy, noting on one hand that public financial support to the Community's fisheries sector is substantial, but on the other hand such support is often incompatible with other Common Fisheries Policy (CFP) objectives, particularly the need to reduce overcapacities. Providing an analytical framework to better understand the effects of subsidies as well as an overview of existing funding schemes under the CFP, this article aims at answering some of the questions posed by the European Commission within its Green Paper. Answers are based on two ideas: the exploitation of marine capture resources ultimately depends on the level of available fish stocks and that a large share of subsidies fuels the race to fish by inducing investment incentives for the fisheries sector. Policies that have ignored this tend to encourage inefficient and unsustainable fishing as well as the misallocation of public funds. Although support schemes under the CFP have changed in recent years, some problematic support schemes persist. A future reform will have to continue the course taken towards sustainable and efficient approaches to supporting the fisheries industry.     

Fisheries science and sustainability in international policy: a study of failure in the European Union's Common Fisheries Policy

Within the European Union, scientific fisheries research and advice is passed down a chain of central European institutions before being incorporated into policy. However, advice is often poorly or only partially implemented and the system has largely failed to achieve sustainable fisheries management.This paper aims to explain why, by examining the use of fisheries science within the Common Fisheries Policy (CFP). The problem is examined with respect to both the political system and fisheries science, to show that the factors in both the supply, and the subsequent use, of scientific data inhibit effective fisheries management.     

The changing environment of fisheries policy in Europe

This paper presents how environmental concerns emanating outside the Common Fisheries Policy (CFP) are increasingly setting the stage for EU fisheries management. This is illustrated via what is termed the exogenous entrance of environmental concerns through the implementation of directives in EU policy. More endogenous entrance of environmental concerns occurs via stakeholder participation in Regional Advisory Councils (RACs) as well as market mechanisms, such as ecolabelling and traceability. This study discusses how these latter channels of environmental concern may have become a more potent and efficient way of reaching environmental goals, outside of the primacy of the CFP.     

Size matters: Short term loss and long term gain in a size-selective fishery

The maximum sustainable yield concept (MSY) and the ecosystem approach to fisheries management (EAFM) have been recently adopted by the European Commission with the objective to achieve, over the long term, the highest possible sustainable yield from a given exploited stock. In this context, a fishing mortality MSY reference level (i.e., F_MSY) should be defined, taking into account recruitment, growth and natural mortality under current or recent ecosystem conditions. Thus, F_MSY is used as a generic term for a robust estimate of a fishing mortality level that is associated with high sustainable yield in the long term, assuming the current harvesting regime in terms of size selectivity. In this study, using the Eastern Baltic cod as an example, we challenge this rather simplified view showing that by using a different harvest selectivity and thus changing the size range of harvested cod, it is possible to largely increase the yield and revenue from the fishery compared to the fishing mortality stipulated in the management plan (i.e., F_MSY), while assuring sustainable high yield in the long term. Thus, implementing the MSY concept in terms of fishing mortality but neglecting selective harvesting effects will not achieve high long term sustainable yield for Eastern Baltic cod. The combination of size selective harvesting and economic reasoning may offer an important tool for the management of marine resources by potentially providing a common currency for the different stakeholders and offer guidance to achieve long term sustainability and human well-being. This would represent the natural step forward in the implementation of EAFM and MSY concepts.     

应用CEDA和ASPIC软件包对巴基斯坦国的多齿蛇鲻(Saurida tumbil)渔业的最大持续产量的初步研究

The catch and effort data analysis(CEDA) and ASPIC(a stock assessment production model incorporating covariates) computer software packages were used to estimate the maximum sustainable yield(MSY) from the catch and effort data of Greater lizardfish Saurida tumbil fishery of Pakistan from 1986 to 2009. In CEDA three surplus production models of Fox, Schaefer and Pella-Tomlinson were used. Here initial proportion(IP) of 0.5 was used because the starting catch was roughly 50% of the maximum catch. With IP = 0.5, the estimated MSY from Fox model were 20.59 mt and 38.16 mt for normal and log-normal error assumptions, while the MSY from Schaefer and Pella-Tomlinson were 60.40, 60.40 and 60.40 mt, for normal, log-normal and gamma error assumptions respectively. The MSY values from Schaefer and Pella-Tomlinson models of three error assumptions were the same. The R2 values from those three models were above 0.6. When IP = 0.5, the MSY values estimated from ASPIC from Fox were 132 mt, and from logistic model were 69.4 mt, with R2 value above 0.8. Therefore we suggest the MSY of S. tumbil fishery from Pakistan to be 60–70 mt, which is higher than the latest catch, thus we would recommend that the fishing efforts for this fishery may be kept at the current level.     

Stakeholder participation in the management of North East Atlantic pelagic fish stocks: The future role of the Pelagic Regional Advisory Council in a reformed CFP

When the Regional Advisory Councils (RACs) were created during the last reform of the Common Fisheries Policy (CFP) in 2002, it was recognised that in addition to the five geographically orientated stakeholder lead advisory bodies, a separate RAC dedicated exclusively to pelagic fisheries was needed because of it being so distinctly different from other fisheries. Pelagic fishing is different mostly due to the fact that the targeted fish species behave in a unique manner by grouping in schools in mid-water unlike other commercially targeted fishes, which typically reside on or near the ocean floor. For this reason, as well as the fact that they are usually widely distributed, researching and managing this dynamic group of fishes across the borders of many countries requires a unique approach. Fortunately, despite these complexities, policy makers have succeeded to establish a reasonably well functioning management framework, which has lead to the situation that most pelagic fish stocks are harvested biologically sustainable. While a majority of Europe's fish stocks still need rebuilding, and the main aim accordingly is to reduce fishing mortality, the current focus for pelagic fish stocks is to improve the performance of already implemented Long Term Management plans in terms of their biological as well as social and economical objectives. This paper reflects upon experiences of the Pelagic Regional Advisory Council (PRAC) in its role as advisor to the EU institutions. Subsequently, in the context of ideas presented in the European Commission's Green paper, the authors discuss the future of the PRAC and conclude that its main development potential lies not with the current EU's CFP reform, but rather should be sought in a wider international context.     

Fisheries policy, research and the social sciences in Europe: Challenges for the 21st century

Despite evidence of a broadening of the science base for European fisheries policy with the incorporation of an ecosystem approach and increasing use of economic modelling, the contribution of the social sciences to policy related research remains less conspicuous. Progress has occurred in the understanding of institutional structures and the theory of fisheries governance, but analysis of EU funded research in the 6th Framework Programme (2002–2006) points to the absence of social science except in multi-disciplinary projects. The diasporic nature of fisheries social science and the absence of clearly articulated social objectives from fisheries policy are among the more plausible explanations for this unconformity. Prospects for reform of the CFP in 2012—including a redistribution of responsibilities between central and regional institutions—offer enhanced opportunities for the social sciences in interdisciplinary and specialist areas of policy related research. Responding to the challenge will necessitate the building of stronger networks within the family of social sciences and across disciplinary boundaries with the natural and economic sciences.     

Is there a need for a new governance model for regionalised Fisheries Management? Implications for science and advice

Over the years, the breadth and depth of EU marine policy has increased with revisions of the Common Fisheries Policy (CFP) and new legislation like the Marine Strategy Framework Directive (MSFD), Integrated Maritime Policy (IMP) and the Framework for Marine Spatial Planning Directive in Europe (FMSP). Not only do these different policies have different remits and hence scope, they also present a multitude of modes of implementation. Although the CFP and MSFD have many common goals when it comes to conservation and sustainable use of living marine resources, they differ substantially in governance set up and implementation modalities, including the underlying scientific advisory processes and structures. Regional cooperation and coordination is foreseen, but there is no governance model in place to coordinate requests for scientific advice, nor institutions coordinating the activities of advice providers, either across policies or across regions. This results in an increase in uncoordinated requests for scientific advice yet the pool of experts fuelling the advisory system is limited. As a result the European marine scientific advisory system is increasingly under pressure. In this paper the consequences of this problem are analysed and a redesign of the institutional governance setting to accommodate these challenges and make the science and advice system ready for the future is explored.     

Accounting for indirect effects and non-commensurate values in ecosystem based fishery management (EBFM)

Ecosystem-based fishery management (EBFM) requires taking account of indirect effects (such as habitat destruction, incidental mortality, and competition between the fishery and marine mammals or birds) and dealing with non-commensurate values (such as yield from the fishery and production of offspring by the birds or mammals competing for the same resource). The perspective of EBFM requires that the rate of fishing mortality is less than the value that provides maximum sustainable yield (MSY), but the question is how far below this level should the fishery operate? For this problem in multiobjective programming, simple method of solution was developed and illustrated with the fishery for sandeels (Ammodytes spp.) in the Shetland Islands. The yield from the fishery at a given fishing mortality F is scaled by MSY (so that this quantity increases as fishing mortality increases from 0 to that giving MSY) and the breeding success of predators (black-legged kittiwakes Rissa tridactyla and Arctic terns Sterna paradisaea) at a given fishing mortality is scaled by that in the absence of fishing. The result is two non-dimensional quantities that can be combined into a single value function, which can then be explored or optimized. It is shown that a reduction of only about 20 percent in yield can nearly double the breeding performance of the more sensitive predator. Extensions of the method are discussed; these include the use of maximum economic yield (MEY) and state dependent life history, as implemented by stochastic dynamic programming.