Assessing the feasibility of ecosystem-based fisheries management in tropical contexts

This analysis documents the reasons for emerging interest in ecosystem-based fisheries management (EBFM) and relates this management model to others. It highlights the central challenges to EBFM in the tropical context and examines an ongoing project, Fisheries Improved for Sustainable Harvest (FISH), in the Philippines—likely the first EBFM project in the tropics. The Philippine legal and institutional context provides major governance challenges to EBFM, especially as management is scaled up. A monitoring framework with process and output criteria is applied to FISH to establish progress to date. Major institutional and governance challenges for EBFM will require monitoring, evaluation, and adaptation.     

Current and future use of indicators for ecosystem based fisheries management

Implementing ecosystem based fisheries management (EBFM) will require a suite of ecological indices to track the state of an ecosystem, in addition to monitoring species-abundance for both economically important species, as well as species that are not targeted for harvest. However, EBFM implementation requires an examination of current methods and applications of ecological indices that are being used. This paper identifies four key uses for ecosystem indices in the context of EBFM and discusses the implications of each: (1) motivation for socio-political action, (2) information for individual users to modify their behavior, (3) implementation of decision rules for management evaluation, and (4) discovery of ecosystem functions to advance scientific knowledge. In a fisheries management context, ecological indicators will be linked to decision rules based on the definitions of both “ecosystem overfishing” and the current single-species definitions of overfishing. Two components of common ecological indicators are species weightings (i.e. catch or abundance data by species) and the species-specific ecological attributes (e.g. mortality rates, body size, trophic level). We discuss statistical issues that arise from estimating the parameters in ecological index calculations from both fishery-dependent and independent data and the potential biases introduced by using catch-per-unit-effort (CPUE) data, catch data, and abundance estimates. Given the range of biases that arise, often the best estimates of species weightings (abundances) are those derived from fish stock assessments. This implies that progress in EBFM may be best served by increasing the number of species for which single-species assessments are done and to expand the list of species to include species which may not be economically important. The policy framework exists to carry out EBFM; however, future works needs to focus on empirical management strategy simulations, as well as theoretical works to identify management criteria based on those indicators.     

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.     

生态模型在渔业管理中的应用

随着人们对于海洋生态的认识逐渐深入,渔业等人类活动的影响受到了更多的关注,"基于生态系统的渔业管理"（EBFM）这一概念被越来越多的研究者和国际组织所接受。生态模型为EBFM的实践提供了科学的评估方法和技术工具。与单鱼种评估模型相比,生态模型更多地考虑了系统内的各种生态过程和作用机制,栖息地等环境条件的变化,以及生态系统整体的结构和功能等,依此来反映生态系统的动态变化。由于生态模型是多样化的,关注和涉及不同的目标对象、机制过程、模型结构和参数,本文按照生态模型所关注的生态层次和组分将其分为多物种模型、群落结构模型和生态系统模型3个类型,分析了各类模型的优劣点。本文进一步阐述了生态模型在渔业管理中的应用领域,以管理策略评估为中心的应用方式,以及实践中模型选择和构建所需要注意的问题,还探讨了生态模型中降低不确定性和提高预测能力的方法。     

Constraints and solutions for managing Pacific Island sea cucumber fisheries with an ecosystem approach

The ecosystem approach to fisheries (EAF) is a holistic paradigm that considers stocks of exploitable species, marine ecosystems and stakeholders. Management agencies must strike a balance between their capacity constraints and the requisites of management measures. Most small-scale sea cucumber fisheries of Pacific Islands have been plundered while others are being opened to commercial exploitation. Data from fishery managers and a regional workshop were used to assess the current problems, institutional constraints and solutions to the management of sea cucumber fisheries in 13 Pacific Island countries (PICs). Technical capacity was often strong for some management actions such as developing marine reserves but weak for others, such as enforcement. Using multi-disciplinary indicators, half of the fisheries were diagnosed by their managers as being overfished or depleted, despite evidence of optimistic bias. Fishery governance varied greatly among the PICs, and co-management frameworks were not typical of any cultural region. Management objectives were prioritised differently among managers but most highly ranked was to protect ecological resilience. The fishery managers proposed different sets of regulatory measures and various management actions, such as surveys to collect socio-economic and fishery-dependent data, support for local governance and strong enforcement – all widely under-practised. Pacific sea cucumber fisheries exemplify how the transition to an EAF by management institutions must involve reorganisation of their technical and human-resource capacities among management tasks. Levies on exports need to be internalised to fund improved management. Management agencies should consider a shift in resources from developing marine reserves, conducting underwater surveys and aquaculture-based restocking to strengthening enforcement capacity, stakeholder involvement and communication with fishers. In concert with these actions, short fishing seasons, shortlists of allowable species and tighter enforcement at export points may serve to turn the tide on boom-and-bust exploitation and safeguard biodiversity.     

Climate variability and its effects on major fisheries in Korea

Understanding in climate effects on marine ecosystem is essential to utilize, predict, and conserve marine living resources in the 21s t century. In this review paper, we summariz ed t h e past history and current status of Korean fisheries as well as the changes in climate and oceanographic phenomena since the 1960s. Ocean ecosystems in Korean waters can be divided into three, based on the marine commercial fish catches; the demersal ecosystem in the Yellow Sea and the East China Sea, the pelagic ecosystem in the Tsushima Warm Current from the East China Sea to the East/Japan Sea, and the demersal ecosystem in the northern part of the East/Japan Sea. Through the interdisciplinary retrospective analysis using available fisheries, oceanographic, and meteorological information in three important fish communities, the trend patterns in major commercial catches and the relationship between climate/ environmental variability and responses of fish populations were identified. Much evidence revealed that marine ecosystems, including the fish community in Korean waters, has been seriously affected by oceanographic changes, and each species has responded differently. In general, species diversity is lessening, and mean trophic level of each ecosystem has decreased during the last 3~4 decades. Future changes in fisheries due to global warming are also considered for major fisheries and aquaculture in Korean waters.     

Producing nature and enacting difference in ecosystem-based fisheries management: An example from the Northeastern US

The science and management of marine resources is increasingly grappling with the use of ecosystem-based fisheries management. Though ecosystem-based fisheries management seeks to unite biological and sociocultural concerns into a holistic framework, people are often seen simply as external drivers of change. The technical questions that are often posed, such as the delineation of boundaries or the strategies of governance, are however more broadly questions concerning the social production of nature. This paper explores these issues by analyzing both the spatial fishing practices of different fishermen and the results of a series of workshops held in New England to solicit opinions about ecosystem-based fisheries management. The paper emphasizes teasing apart the human dimensions of fishing embedded in predominant notions such as fishing effort through more explicit consideration of spatially based resource dependencies and mutual constitution of society-nature.     

Impact evaluation of a fisheries development project

A number of fisheries development projects are undertaken every year in recognition of the important role fisheries play in many coastal communities. The objectives vary, but typically go beyond a limited focus on fisheries management and the ecosystem. This makes it difficult to evaluate the contribution of a project, particularly in data poor environments such as most developing countries. This paper used the recently developed Fisheries Performance Indicators (FPIs) to evaluate the impact of a World Bank development project in a Liberian coastal community. FPIs are designed to capture economic and social performance of a fisheries system in addition to the management and environmental impacts. The results show improvements in most ecological dimensions, and also in many social and economic dimensions targeted by the project. Hence, the project intervention appears to be positive. However, some indicators, particularly in relation to general governance in Liberia, showed a negative development which was not caused by the project.     

Transboundary research in fisheries

Spatial boundaries have become an indispensable part of regimes and tools for regulating fisheries, with examples including marine protected areas, regional fisheries management organizations and Exclusive Economic Zones. Yet, it is also widely acknowledged that boundaries are a social construct, which may be resisted by both fishers and fish ecology. The ensuing spatial and institutional mismatches have been shown to frustrate management efforts, exacerbating issues of non-compliance and ultimately leading to conflicts and overfishing. Interestingly, the often static and rigid nature of these boundaries has also led to a concomitant research interest in ‘transboundary’. This paradoxical situation of more boundary-setting entailing more transboundary thinking warrants a deeper understanding about boundaries and the role of transboundary research in fisheries. The aims of this review article are twofold: (1) a theoretical clarification on the meanings and uses of spatial boundaries drawing on geographical “boundary studies” literature; and (2) a construction of a typology that outlines how transboundary research is being articulated and envisioned. Together, the study reveals that transboundary scholarship in fisheries are mostly related to resources, fleets, trade and governance aspects and that dealing with the “boundary paradox” encompasses re-incorporating, re-scaling and re-imagining of boundaries. This article provides a conceptual basis for reflecting upon boundaries in world's fisheries and opens up discussions for a more nuanced boundary application that can better cope with multi-level interactions and dynamicity.     

Adaptation of fisheries and mariculture management to extreme oceanic environmental changes and climate variability in Taiwan

This study presents the response of fisheries management to the extreme climatic events that affect marine capture fisheries and mariculture in Taiwan. Two regional approaches that can be applied universally to help capture fisheries and mariculture adapt to extreme weather events are also proposed. In the winter of 2008, an anomalously strong and continuous northeasterly wind caused by a La Niña event drove the cold China Coastal Current southward to penetrate the southern Taiwan Strait, and a portion of this current intruded eastward to the southern Penghu Archipelago. The cold current intrusion appreciably damaged marine aquaculture and the wild fish population, causing the death of more than 73 t of wild fish and 80% of cage aquaculture fish at the Penghu Islands. This extremely cold seawater event occurred between late January and the beginning of February 2008. To recover fishery resources around the waters of Penghu, fishery-related agencies adapted recovery measures over 3 years starting in April 2008 that included hatchery juvenile release, environmental monitoring, fishery subsidies, and ecological field investigations. This study suggests that responding to extreme climatic influences on fisheries and mariculture should include (1) establishing an early warning system by connecting fisheries agencies and marine research institutions to assist decision makers in performing time-adaptive measures, (2) temporarily suspending fishing activities after the occurrence of a natural disaster to help recover fishery resources and ecosystems, (3) altering the governance of farming fishing right so that fish farmers can temporarily transfer their aquaculture cages from high-risk areas to waters outside the influence of extreme weather events, and (4) continually filing surveys to understand the recovery status of marine ecosystems.     

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 a top-down fisheries management approach in the northwestern Mediterranean: Some lessons from the Philippines

The management of fisheries resources in the northwestern Mediterranean is traditionally centralized and developed within the framework of coastal states and European Union common policies. In general, it has not been sufficiently effective in reversing the declining situation of fisheries resources and fishers in this region. This paper discusses the feasibility of moving away from a top-down approach in fisheries management towards a more participative and convergent mode of governance in the region. More specifically, the study focuses on MPAs as a fisheries management tool and evaluates their current establishment and management system in the French Mediterranean as a case study for the region. A brief review of the experiences on fisheries and MPA management in the Philippines is also presented to obtain insights on bottom-up and collaborative management approaches. Finally, possible opportunities for adopting a more decentralized and coordinated approach in fisheries management within the French socio-political system, and possibly in the northwestern Mediterranean region, are discussed. These include the existence of fishing community organizations in the region, such as the prud'homies in France and cofradias in Spain, starting with management strategies that are simpler to enforce and more acceptable to direct users, e.g., fishery reserves, and exploring co-management arrangements to manage fisheries at ecologically meaningful but operationally manageable scales as has been proposed by some development organizations. However, effective changes in the system would require major national policy and institutional reforms, social preparation and organizational strengthening which would take time and resources.     

Tropical shrimp trawl fisheries: Fishers’ knowledge of and attitudes about a doomed fishery

Tropical shrimp trawl fisheries are unsustainable, and similar sets of management measures are used globally to address the direct and indirect costs of their practices. Yet little is known about shrimp fishers’ perceptions, despite the clear importance of human behaviour in determining the success of fisheries management. This article presents the results of interviews with industrial shrimp trawl fishers from the southern Gulf of California, Mexico, and reveals fishers’ knowledge and attitudes that should be considered when developing management plans for industrial shrimp trawl fisheries. Fishers were asked to comment on problems facing the fishery, management options to address the issues, and the future of the fishery in general. The interviews also elicited new knowledge on effort and valuable components of bycatch, useful to the management process. Among the problems facing the Gulf of California fishery, fishers tended to identify those generated externally—fluctuations in shrimp populations, increases in fishing effort, decreases in shrimp prices and increasing overheads—and thus distance themselves from responsibility for management options. The successes of any mitigation measures for the fishery are likely to depend on proper enforcement and reliable governance, as our study indicates. Should strong enforcement be put in place, then trawl free areas seem to be the most pragmatic way to alleviate problems associated with the fishery; our effort data point to areas that might have greatest acceptance among fishers. A reduction in capacity would clearly complement marine zoning for trawl free areas. In the long run, however, it may be economic extinction of the fishery that reduces pressure on the marine ecosystem.     

A governance perspective on the large marine ecosystem approach

The large marine ecosystem (LME) concept and approach has had a global impact on marine ecosystem-based management. The LME approach provides a framework for assessing and monitoring LMEs and is based on five modules: productivity, fish and fisheries, pollution and ecosystem health, socioeconomics, and governance. It appears that the LME approach is also being used to structure interventions to bring about change. Its appropriateness for the latter purpose is questioned. The major concerns are that the LME approach is not consistent with current thinking about enabling governance and its compartmentalized structure does not facilitate effective governance intervention. Current thinking on good governance suggests that it is more appropriate to approach governance interventions at the LME scale through multi-level governance policy cycles.     

Contextual factors influencing sustainable fisheries in Mexico

Sustainable fisheries take into consideration that managed fisheries ecosystems shift over time in response to evolving environmental as well as market and political factors. These contextual forces are especially valuable in understanding developing countries such as Mexico, where the unconsolidated fisheries administration faces productive marine ecosystems but unsustainable fisheries. To recognize the issues that have inhibited the consolidation of a regulatory system for sustainable fisheries, a contextual factor analysis was applied to the co-development of two current policies in the Mexican fishery regime: fisheries and environmental policies. Six historical phases have been identified in which there are few long periods of stability and frequent short periods of radical change that alternate between stable and adverse contextual situations. These short and contrasting contextual situations cause a kind of tug-of-war in Mexican fisheries policy-making. On the one hand, domestic economic, scientific, and technological forces seem to slowly lead toward the consolidation of sustainable fisheries; on the other hand, domestic policies drift from one position to another at other timing than the international fisheries and environmental policies. Although recent crises seem to highlight new periods of radical change in Mexico, they also provide an opportunity to adopt new structural plans to consolidate domestic forces as a basis for long-term strategies.     

Raising the “Sunken Billions”: Financing the transition to sustainable fisheries

Long-term investment to drive the adoption of precautionary, adaptive and resilience-building fisheries management measures is urgently required, especially given the financially difficult transition period to reach sustainable fisheries. In this paper a case for investing in the recovery of large marine ecosystems is provided based on the future value of recovered fish stocks. It is argued that the current market-based sustainable seafood movement alone will not affect the scale of change needed and must be complemented by investment in fundamental conservation measures that will lead to the recovery of marine ecosystems and promote long-term sustainable use. A rationale for addressing the economically challenging transition period is provided and the basis of a new financial institution to finance the measures necessary for realising the economic, social and environmental benefits of large-scale fisheries reform is proposed.     

Benchmarking for fisheries governance

The paper develops a benchmarking framework to improve fisheries governance and promote resilient ecosystems and profitable fisheries. The benchmarking includes five key components: accountability, transparency, incentives, risk assessment and management; and adaptability. Collectively, these factors provide a framework to benchmark and improve fisheries governance. Initial findings from benchmarking in two of Australia's Commonwealth fisheries indicate that the framework provides an important tool to help overcome the underlying causes of unsustainability in capture fisheries—poor and/or ineffective fisheries governance.     

A discussion of management disputes arising from the multiple utilization of flying fish resources in Taiwan and suggested countermeasures

Flying fish play a vital role in maintaining the balance of marine ecosystems. In Taiwan, flying fish resources are mainly utilized in three ways. The Tao aboriginal people regard them as an important, and spiritual, source of food and utilize the resource sparingly and cautiously. Conversely, in northern Taiwan, fisheries harvest flying fish roe, which may in the future lead to ecosystem damage. Thirdly, large quantities are caught for promoting seafood to tourists at various events. The latter two utilizations may cause overfishing and scarcity.In 2007, the Taiwanese government began to adjust fisheries management policies for monitoring the utilization of flying fish resources. The current policies protect aboriginal marine culture and employ ‘total allowable catch’ (TAC) as a transitional mechanism in flying fish caviar harvesting. In the future, the government should employ collaborative measures at a regional level, including quota allocation based on scientific evidence, in order to maintain ecosystem balance and ensure the sustainability of fish resources. Activities to promote seafood, and the catching of adult fish on a large scale, must be stringently managed according to the amount of resources available. Finally, the most appropriate and least risky approach, is to designate flying fish spawning grounds as marine protected areas.     

Mariculture development and livelihood diversification in the Philippines

This paper aims to evaluate mariculture as sustainable livelihood diversification option for coastal fishers in the Philippines and guide policy development in this direction. Mariculture in the Philippines refers to the culture of finfishes, shellfish, seaweeds and other commodities in cages, pens, stakes and rafts in marine environment. This paper evaluates the biophysical and socioeconomic contexts in which mariculture operate. Ten years after launching the first mariculture park organized and managed by the country's government fishery agency, and the nationwide promotion of this program, only 273 ha or 0.54% of the 50,150 ha total area planned for development has been established. Mariculture has not met its expected results due to a number of problems. This paper revisits the policies, organization, governance and administration of mariculture parks in the country. It also discusses the issues and challenges with mariculture as a livelihood diversification option within the context of ecosystems approach to fisheries management in the Philippines.     

Toward shared understandings of ecosystem-based fisheries management among fishery management councils and stakeholders in the U.S. Mid-Atlantic and New England regions

Ecosystem-based fisheries management (EBFM) is often discussed by fisheries managers and stakeholders as a potential goal. EBFM is based on a multi-species approach, which varies significantly from the single species fisheries management (SSFM) approach currently practiced under the U.S. Magnuson-Stevens Fishery Conservation and Management Act (MSFCMA). EBFM is “holistic” and considers “all factors,” but it is impossible for management to incorporate all factors into EBFM. This study sought to improve understanding of factors contributing to or preventing progress toward EBFM implementation in the Mid-Atlantic Fishery Management Council (MAFMC) and New England Fishery Management Council (NEFMC), focusing on Council member and stakeholder beliefs, attitudes, and mutual understanding. Objectives included determining mutual understanding between MAFMC and NEFMC members and stakeholders about EBFM and identifying MAFMC and NEFMC member and stakeholder preferences for EBFM definitions, practices, and outcomes, and prioritizing which aspects of EBFM managers and stakeholders find most important. Stakeholders included commercial fishermen, recreational anglers, nongovernmental organization (NGO) leaders, and Scientific and Statistical Committee (SSC) members. Over 1000 survey responses about EBFM from council members and stakeholders in the Mid-Atlantic (MA) and New England (NE) regions were analyzed. The Coorientation Model was used to characterize understanding between the Council and fisheries-related stakeholder groups. For the MA and NE regions, most stakeholders agreed on definitions, practices, and possible outcomes for EBFM. Results suggest that most Council members and stakeholders in the MA and NE regions support a change from SSFM to EBFM at an incremental, intermediate, or complete, gradual (5–10 years) pace. The application of the Coorientation Model to EBFM and the fishery management councils provided insights into how an improved understanding of the attitudes, beliefs, and mutual comprehension of Council members and stakeholder groups could potentially facilitate the implementation of EBFM. Council members and stakeholders responded similarly to, and Council members correctly predicted stakeholder responses about, EBFM definitions, practices, and outcomes. These findings suggest that Council member and stakeholder agreement and understanding are not barriers to MAFMC and NEFMC adoption of EBFM.