Neoliberal and neo-communal herring fisheries in Southeast Alaska: Reframing sustainability in marine ecosystems

The transformation of Pacific herring (Clupea pallasii) fisheries from communal to commons to neoliberal regulation has had significant impacts on the health and sustainability of marine ecosystems on the Northwest Coast of North America. Due to their abundance, seasonality, and sensitivity in disturbance, herring were carefully cultivated and protected by coastal Tlingit, Haida, and Tsimshian communities. The early industrial fishing era undermined this communalist approach in favor of an unregulated commons for bait and reduction fisheries, attracting non-local fleets and leading to conflicts with local Natives and tragedy of the commons style overexploitation of herring stocks by the mid-twentieth century. Since the 1970s, a re-regulated neoliberal sac roe fishery for Japanese markets has provided new opportunities for limited commercial permit holders, but with further depredations on local spawning populations. This paper uses frame theory and historical and political ecology to show how this transformation was justified by three critical but dubious (re)framings of Southeast herring populations under modern scientific management: (1) a reductionist framing of single species productivity models, expressed as herring “biomass,” within space and time (baseline scale framing); (2) the selective framing and privileging of human industrial predation under maximum sustainable yield (MSY) within a dynamic ecosystem of multiple predator populations (actor relations framing); and (3) the strategic framing of spawning failure events and policy responses to those events by professional fisheries managers (event–response framing). Finally, the paper argues for a new social–ecological systems approach, based on aboriginal models of herring cultivation, to sustain a commercial, subsistence, and restoration economy for the fishery.     

Global fisheries losses at the exclusive economic zone level, 1950 to present

Up to one-third of commercial fishery stocks may be overfished at present. By analyzing catch trends and applying an empirical relationship derived from stock assessments, this article tracks the geographic spread of overfishing at the country level in terms of lost catch and lost revenue, from the start of industrialized fishing in 1950-2004. The results tell a cautionary tale of serial depletion to meet the ever-rising demand for fish. Examining country losses with respect to fishery management reveals that overcapacity and excess fishing effort are widespread, but also that recent trends towards sustainability can stabilize or reverse losses (e.g. for Norway, Iceland, the US, Canada, Australia, and New Zealand). Global trade effectively masks the successive depletion of stocks, so that without decisive action to reduce fishing effort, many more stocks will suffer and undernourishment impacts for the major exporting, food-deficit nations will only magnify.     

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.     

Foregone harvests and neoliberal policies: Creating opportunities for rural,small-scale,community-based fisheries in southern Alaskan coastal villages

Neoliberal policies of effort limitation and privatization have reduced commercial salmon and other fishing opportunities available to the coastal, predominantly Alaska Native, villages of southern Alaska. However, there are a variety of circumstances, including the manner in which the current commercial fishery is prosecuted, that lead to surpluses of unharvested salmon, and potentially other species, available in certain areas. This paper will define the concept of “foregone harvests”, discuss the environmental and managerial conditions that lead to “foregone harvests” and describe the possibilities such conditions create for the development of small-scale, local and community-based fisheries. Case studies of possible Huna Tlingit (Hoonah) and Kaigani Haida (Hydaburg) salmon fisheries will be presented. Alternative arrangements of salmon fisheries and institutions in southeast Alaska are presented through case studies of the villages of Yakutat and Metlakatla. These examples demonstrate how such fisheries could be built on local and traditional knowledge, as well as currently used subsistence technologies resulting in new economic opportunities compatible with local cultural patterns and interests and buttressing local identities and commitments.     

Migration dynamics of Pacific herring (Clupea pallasii) and response to spring environmental variability in the southeastern Bering Sea

In the southeastern Bering Sea, Pacific herring (Clupea pallasii) migrate from the Pribilof Islands region where they overwinter, to the Alaska coast where they spawn in spring. The migration sustains a nearshore commercial fishery that targets roe-bearing females just prior to spawning. Herring also are taken as bycatch in groundfish trawl fisheries, where time and area closures in these fisheries are triggered by herring bycatch caps. Using herring bycatch data collected since the 1970s by National Marine Fisheries Service (NMFS) observers aboard groundfish fishing vessels, a retrospective analysis was conducted to describe the seasonal migration pattern of Pacific herring in the southeastern Bering Sea and to study its spatial and temporal variability. Observed changes in herring catch per unit of effort were compared with variability in climate and oceanographic conditions. The seasonal migration is complex, but annual shifts in migration routes and a possible northward shift of the overwintering grounds was identified. Pre-spawning herring aggregated in different areas depending on whether spawning occurred early or late in spring. The thermal structure of the ocean around the ice edge appears to influence herring migration timing and route as well as spawning date. Thus, on the basis of recent changes in sea-ice extent and duration, we suggest that the herring bycatch savings area that was developed from data collected in the 1980s should be revised to reflect prevailing conditions.     

Long‐term trends in the recreational lobster fishery of Florida,United States: Landings,effort, and implications for management

In Florida, United States, the Caribbean spiny lobster, Panulirus argus, supports an important commercial fishery and also perhaps the most intensive recreational fishery of any lobster species, with sales of recreational lobster fishing permits exceeding 100 000 annually. For the past decade, we have used mail surveys of recreational lobster license holders to estimate spatially explicit landings and fishing effort when recreational fishers are most active—during the state's “Special Two‐Day Sport Season”, which takes place just before the opening of the commercial season, and during the first month of the regular recreational season, which coincides with the commercial season. From 1993 through 2002, fishing effort during the Special Two‐Day Sport Season has ranged from 60 000 to 112 000 person‐days, and landings have ranged from c. 112 to 255t. Both fishing effort and landings have varied without trend. Fishing effort during the regular season over the same period has ranged from 261 000 to 514 000 person‐days, and landings have ranged from 434 to 825 t. Fishing effort has shown a marginally statistically significant decreasing trend, the result of a progressive decrease in effort since 1999. The largest proportion of both fishing effort and landings was concentrated along the south‐east coast. Despite the recent decrease in landings, the proportion of total landings made by the recreational fishery has increased. From 1993 through 1998, the fishery was responsible for c. 30% of commercial landings; by 2001, that percentage increased to nearly 40%. Such a shift in landings away from the commercial trap fishery toward the recreational fishery was recognised as a potential but unintended effect of the ongoing management plan of restricting effort in the commercial trap fishery. Our 2001 surveys revealed that recreational lobster fishers spent more on a person‐day basis than the general visitor to the Florida Keys did, but less than those visitors using the region's coral reefs. Consequently, managers must establish management strategies that allow the coexistence of this resource's user groups and also incorporate the social and environmental concerns of nonuser groups.     

Corporate management of the Northwestern Hawaiian Islands lobster fishery

Limited entry and biological quotas were implemented in the lobster fishery of the Northwestern Hawaiian Islands in 1991, during a period of declining stock abundance. A companion use-it-or-lose-it permit provision has had the perverse effect of increasing fishing effort during times of declining stocks. Despite its unfavorable short-term prospects, the fishery has the potential to be very lucrative for a small number of boats over the long term. This paper introduces a dramatically different management regime that would create ownership rights in a private management corporation for the current limited-entry permit holders. This corporation would function within a renewable operating contract with the government to protect the public interest in the conservation of the lobster population and its associated ecosystem. Published by Elsevier Science Ltd.     

Assessment of the exploitable biomass of thread herring(Opisthonema spp.) in northwestern Mexico

In recent years, the small pelagic fishery on the Pacific northwest coast of Mexico has significantly increased fishing pressure on thread herring Opisthonema spp. This fishery is regulated using a precautionary approach(acceptable biological catch(ABC) and minimum catch size). However, due to fishing dynamics, fish aggregation habits and increased fishing mortality, periodic biomass assessments are necessary to estimate ABC and assess the resource status. The Catch-MSY approach was used to analyze historical series of thread herring catches off the western Baja California Sur(BCS, 1981–2018) and the Gulf of California(GC, 1972–2018) to estimate exploitable biomass and target reference points in order to obtain catch quotas. According to the results, in GC,the maximum biomass reached in 1972(at the beginning of fishery) and minimum biomass reached in 2015; the estimated exploitable biomass for 2019 was 42.2×10~4 t; and the maximum sustainable yield(MSY) was 15.4×10~4 t.In the western BCS coast, the maximum biomass was reached in 1981(at the beginning of fishery) and minimum biomass was reached in 2017; the estimated exploitable biomass for 2019 was 3.2×10~4 t; and the MSY was 1.2×10~4 t.Both stocks showed a decrease in biomass over the past years and were currently near to point of full exploitation.The results suggest that the use of the Catch-MSY method is suitable to obtain annual biomass estimates, in order to establish an ABC, to know the current state of the resource, and to avoid overcoming the potential recovery of the stocks.     

Economic tradeoffs in the Gulf of Maine ecosystem: Herring and whale-watching

This research attempts to quantify some of the effects of localized depletion of herring by examining the search times of commercial whale-watching vessels. Whale-watching vessels are indirect users of herring; whales feed on herring and may disperse when prey availability is low. A dataset of daily whale-watching outcomes is combined with fishing effort and oceanographic data to test the hypothesis that intensive fishing effort increases the search time of whale-watching companies. Our results suggest that fishing may have a detrimental impact on search time; however, the magnitude of this effect is fairly small. We find policy that the recently enacted policy which prohibits fishing for herring in whale-watching areas would decrease search times by a small amount. We find some evidence of a localized aggregation effect; search times are the lowest when herring are spawning in the inshore areas. These results should be of interest to policymakers in determining future fishing regulations in an ecosystem-based fisheries management context.     

Climate change and the migratory pattern for Norwegian spring-spawning herring—implications for management

Norwegian spring-spawning herring (Clupea harengus) is a migratory fish stock, and the migratory pattern has changed several times. There seems to be a connection between altering climatic conditions and the size of fish, year-class strength and the migratory pattern. The changing juridical status of the herring has caused problems and conflicts between the parties involved in the fishery. Investigating whether the change is due to over fishing or to environmental causes, or a combination of both, was one of the objectives of the analysis. Furthermore, we have looked at the processes involved in finding solutions to the problem of managing straddling stocks.     

Characteristics and value of the Thukela Banks crustacean and linefish fisheries,and the potential impacts of changes in river flow

This study describes the Thukela Banks crustacean and linefish fisheries and investigates the potential impacts of reduced flow from the Thukela River on the value of these fisheries. Data were obtained from published and unpublished material, key informants and government records. The crustacean fishery employs about 300 people, and comprises an inshore and offshore fishery. Inshore catches and effort are strongly seasonal, peaking in April to June. The probability of fishing in any particular month is positively correlated with catch per unit effort. Average overall annual catch (inshore and offshore) was estimated to be in the region of 700 tonnes for 1992–2002 with a gross output of about R36.7 million per annum, and a gross value added (net output) of R13.8 million (1 US$ = R6.40; 2003). Inshore prawns were estimated to contribute R8.5 million of the gross output. The Thukela Banks was estimated to contribute R4.5 million and R35 million (rand value in 2003) to the gross output of the commercial linefishery and boat-based recreational angling fishery respectively. Freshwater reduction scenarios yielded 0.7–11% reductions in prawn catches, which translated into only a 1–2% drop in the annual value of the fishery. The latter was attributed to the fishery's diversity (predominantly the buffering effect of bycatch) and the fact that the stocks of the species targeted by the offshore component are largely independent of flow. Catches and value of the recreational boat-based linefishery were predicted to remain fairly constant irrespective of any changes in flow. The commercial linefishery was the most responsive, with a 20% decline in total catch and 17% value predicted for the most extreme flow reduction scenario.     

Made in Japan: The Japanese market and herring roe production and management in Canada's southern Gulf of St. Lawrence

The herring roe fishery in Canada's southern Gulf of St. Lawrence is a productive fishery that lies outside the confines of privatized arrangements. Yet, this fishery is compromised by its dependence on the Japanese seafood market. Consideration of the efficiency of this fishery needs to account for the role assumed by this market in setting fishing practices. A more ecologically and economically efficient use of the herring resource requires greater attention to supply chain integration by local harvesters, processors and buyers prior to engaging with distant markets. This is necessary regardless of the property rights regime that is in place.     

Creating local management legitimacy

How can legitimate local management be created in a situation initially lacking respect for both local authority and federal government regulations? This question is addressed through examination of the 18-year history of what became an effective local regulatory regime for clams in an aboriginal community in British Columbia, Canada. After considering structural conditions favoring local management in the fishery, the community, and governance arrangements, four stages in the development of legitimate local management are examined, considering the roles of regulatory, scientific, political, and moral legitimacy. Eight hypotheses regarding the larger question of legitimate fisheries regulations are confirmed or proposed.     

Transboundary fisheries management in the Amazon: Assessing current policies for the management of the ornamental silver arawana (Osteoglossum bicirrhosum)

The management and governance of shared stocks have long been identified as a challenge to achieve long-term sustainability in fisheries. This is the situation of fisheries in the Amazon basin, a region shared by nine countries. This paper provides an overview of the social-ecological outcomes and management implications of sharing fish stocks among countries with different public policies, taking the valuable Amazonian ornamental silver arawana (Osteoglossum bicirrhosum) trade as a case study. Specifically, it (i) presents and discusses the policies of Colombia, Peru and Brazil for the silver arawana fishery, and how these are conducive for the successful management of this shared transboundary fishery; and (ii) analyzes the market for the ornamental silver arawana and how it affects the ability to sustainably manage the fishery. The interplay between the multiple environmental, economic and social dimensions involved in the ornamental silver arawana fishery affects the sustainability of this species even in Brazil, where this fishing is forbidden but still illegally caught by Colombians and Peruvians. Among the factors that make fisheries policies inefficient in this region are: (i) incongruent policies between the countries and institutions with low organizational capacity to accomplish the established policies; (ii) environmental heterogeneity of Amazonian aquatic systems, which requires local and adaptive measures; and (iii) complex socio-economic relationships in the live-fish trade business. Legally binding efforts to reduce problems derived from shared fish stocks are an urgent need and should be addressed by the multilateral organizations created for the Amazonian sustainable development.     

Effort changes around a marine reserve: The case of the California Rockfish Conservation Area

This article is an analysis of observed changes in the level of fishing effort and the spatial distribution of fishing effort following implementation of a marine reserve off the California coast. The Rockfish Conservation Area (RCA) closes the area between depth contour based boundaries to commercial trawl fishing. In this analysis, commercial fishing vessels are grouped based on their level of fishing effort within the closed area prior to the closure in order to compare changes in effort levels between groups. The results suggest that the RCA may have had a small effect on the level of fishing effort in the California groundfish trawl fishery. Spatial distribution of fishing effort before and after implementation of the marine reserve is also compared. Some concentration of effort occurred along parts of the closed area boundaries. This pattern suggests the “fishing the line” behavior noted in the marine reserve literature, but other possible explanations exist including the effects of coincident changes in other regulations and changing bioeconomic conditions.     

Improving fleet efficiency to maximise economic yield in a Western Australian prawn fishery

The Shark Bay trawl fishery is Western Australia's most valuable prawn fishery (worth AUD$25 million in 2014). The 18-vessel fleet targets western king prawns (Penaeus latisulcatus), brown tiger prawns (P. esculentus) and also retains saucer scallops (Ylistrum balloti) and blue swimmer crabs (Portunus armatus). Increased fuel prices, falling prawn prices and lower catches of other species, following extreme environmental events, have impacted fishery profits. A biomass dynamics model with an economic component indicated that total revenue levels start to decline when annual effort increases beyond ~ 200 fishing days per boat. Annual effort required to achieve MEY, when based solely on prawn fishing, is 115–150 days per boat after accounting for fixed and variable fishing costs and annual fishing efficiency increases of 1–2%. From 2007–2014, the adjusted effort was 188–192 days per boat. Fishing occurred between March and November during 7–8 fishing periods, separated by 5–8 day (low catchability) moon closure periods. An empirical daily profit assessment (2007–2015), accounting for recruitment variation, daily prawn size compositions, monthly market prices for different prawn species and sizes, and daily fishing costs, showed vessels made profits on ~ 115–160 days and losses on ~ 15–55 days per year, when fishing occurred near the full moon. The fishery benefitted in 2013–2015 by starting later in the year and better targeting within-season effort. This management strategy within the effort-control framework, which improved profitability, maintained higher spawning stocks and reduced ecosystem fishing impacts, has wider application in prawn fishery management.     

Habitat mapping of the Atlantic bluefin tuna derived from satellite data: Its potential as a tool for the sustainable management of pelagic fisheries

The feeding and spawning habitats of the overfished Atlantic bluefin tuna (BFT) are mapped in the Mediterranean Sea and used in the present proposal for selecting restricted fishing grounds. The feeding habitat is mainly traced by oceanic fronts of satellite-derived temperature and chlorophyll while the spawning habitat is mostly characterized by an important heating of surface waters. The proposal recommends opening the fishery in feeding areas in case the BFT stock is low (current situation). Only spawning areas at its latest stage could be opened once the stock has recovered to its optimum yield. Due to the possible concentration of fishing vessels if fishing areas are restricted (e.g. four-fold increase with a 1/16th restriction of the Mediterranean Sea) the inspection activities could be better targeted. Identified spawning grounds, opened or closed to fishing, could also be particularly monitored by control operations. Within the authorized areas, the habitat maps would guide fishermen to the favourable habitat reducing their costs. The habitat guided management could be able to adapt the spatial and temporal distribution of the effort to the requirements of both the fisheries’ control and the resource. Its implementation is likely to protect the stock (a) by apparently decreasing illegal fishing which accounts in the recent years for more than 1/3rd of total catches, (b) by protecting the spawners to ensure a suitable recruitment and (c) by distributing the effort to respect the population structure. The first species studied is the emblematic bluefin tuna which is at high risk of collapse due to overfishing. The approach is a priori transposable to other epipelagic species of commercial importance.     

The artisanal fishery for East Coast rock lobsters Panulirus homarus along the Wild Coast,South Africa

East coast rock lobsters Panulirus homarus are collected by the indigenous people of the Wild Coast, in the Eastern Cape, South Africa, and are sold to coastal hotels and holidaymakers. The South African government has proposed a small-scale commercial fishery based on P. homarus to improve socio-economic conditions in that region. Catch data and information on fishery operations were collected for the artisanal fishery from Coffee Bay, Presley Bay, Port St Johns and Mbotyi, as well as from a commercial buying station near the Mdumbi Estuary, between March 2003 and October 2005. The catch per unit effort of rock lobster poling varied from 13.5 ± 7.7 fisher^–1 outing^–1 at Port St Johns to 5.9 ± 3.1 fisher^–1 outing^–1 at Coffee Bay, but the number of fishers or fishing frequency could not be verified. About two-thirds of the lobsters caught (69%) were smaller than the minimum legal size. Hotels and the buying station complied with size limits, but cottages and campers often bought undersized lobsters. Smaller lobsters (females) are caught by poling than by diving. Geographical variations in poling effort and lobster mean sizes could be indicators of heavy fishing pressure on shallow, inshore reefs. The implications of commercialising the fishery and its associated management are discussed.     

Bridges to best management: Effects of a voluntary bycatch avoidance program in a mid-water trawl fishery

The catch of non-target species or discarding of target species (bycatch) in commercial fisheries can result in negative species level and ecosystem wide impacts as well as adverse social and economic effects. Bycatch has become one of the foremost, global issues of fishery managers and conservationists, especially when the non-target species is from a protected or threatened population. However, the impact and spatial distribution of bycatch is frequently unknown making it difficult to develop effective, justifiable mitigation regulations. This challenge is exemplified by the bycatch of river herring (alewife, Alosa pseudoharengus, and blueback herring, A. aestivalis) and American shad (A. sapidissima) in the northwest Atlantic mid-water trawl fishery targeting Atlantic herring (Clupea harengus) and Atlantic mackerel (Scomber scombrus). As an alternative to immediate management action, a voluntary bycatch avoidance program was established through an industry, state government, and university partnership. Here the program is described and its impact is evaluated by comparing fleet behavior and bycatch prior to and during the program. The combined results suggest that consistent communication, facilitated by the avoidance program, positively influenced fishing habits and played a role in the approximately 60% decrease in total bycatch and 20% decrease in the bycatch ratio observed during the program. However, the success of small scale move-along strategies to reduce bycatch ratios varied greatly in different areas of the fishery and years. This suggests the program is best viewed as an intermediate or complimentary solution. Overall, this project exemplifies of how collaborative programs can help alleviate difficult management scenarios.     

Rapid fish stock depletion in previously unexploited seamounts: the case of Beryx splendens from the Sierra Leone Rise (Gulf of Guinea)

Fish stocks associated with seamounts may be particularly susceptible to overexploitation. From January to July 2001, the Spanish Oceanographic Institute (IEO) conducted an experimental fishing survey entitled ‘Palguinea-2001’ on the seamounts of the Sierra Leone Rise. Beryx splendens (commonly called alfonsino) is the main commercial demersal fish associated with this area. The aim of this study was to investigate the effects of a demersal longline fishery targeting B. splendens on the previously unexploited small Machucambo Seamount over a short time-scale, and also to consider trends in pooled catch rate at another four seamounts. During 110 fishing days at Machucambo, a total catch of 207 tonnes of B. splendens was taken with a fishing effort of 1 309 070 hooks. A spectral analysis and red-noise spectra procedure (REDFIT) algorithm was used to identify the red-noise spectrum from the gaps in the observed time-series of catch per unit effort by weight. Our results show the potential impact of longline fishing pressure on an unexploited ecosystem – after approximately 50 fishing days, the stock appeared to decline substantially, as reflected by a marked drop in catch per unit effort. The apparent rapid decline of the stock might be related to the small size and the virgin state of the Sierra Leone seamounts. The results could be extrapolated to similar small seamounts elsewhere.