The “easy restriction” syndrome drive local fish stocks to extinction: The case of the management of Swedish coastal populations

Spatially sensitive management built on detailed biological and socio-economic knowledge is required to establish sound fishing regulations and to avoid extinction of small coastal populations of fish and shellfish. Highly productive isolated populations of several commercial species have historically inhabited the Swedish west coast, but during the past century these populations have been depleted by fisheries and with no sign of recovery. Since 1999 several fisheries regulations and different stakeholder co-management initiatives have flourished along the Swedish coast of the Skagerrak. They aimed to facilitate the recovery of collapsed local stocks but the established regulations failed to identify and restrict the main sources of mortality acting on local stocks and they have thus been ineffective to promote the recovery. Furthermore, regulations have operated on the weakest among stakeholders (e.g.. recreational fishers), which have minor influence over management, and the restrictions have been imposed without providing any data which supported the choice (i.e. the “easy restriction” syndrome). In line with the general “spirit” of recent Swedish fishery management, we conclude that managers, without the disapproval of Swedish scientists, have circumvented limitations which should address the largest mortality factor, i.e. the commercial fishery. The regulations presently in place, have been politically uncontroversial and easy to implement, but have been highly unsuccessful. We therefore suggest that stakeholders, including politicians, should start focusing on more effective and science-based management and less on what is politically attractive if Swedish citizens shall have a chance to witness the recovery of their once flourishing coastal populations.     

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.     

Resolving environmental issues in the southern Brazilian artisanal penaeid-trawl fishery through adaptive co-management

Many conventional management strategies have been demonstrated to be ineffective in achieving sustainable fisheries, and new approaches are required to overcome existing environmental, social and economic problems. Adaptive co-management represents the combination of a learning-by-doing approach (adaptive management) involving all related and legitimate stakeholders in the decision-making process (collaborative management). In this study, the relevant experiences from a fishery in southern Brazil are reported. The first section of the paper summarizes the broad history of national fisheries and their management. Then the southern Brazilian artisanal penaeid-trawl fishery is briefly described and the three main problems associated with the common gears used are discussed, including their (1) poor size and species selectivities, (2) poor efficiencies, and (3) their mechanical impacts on benthic habitats. Finally, a framework is proposed to address the environmental and socio-economic issues in the fishery and its implementation discussed via an adaptive co-management approach.     

Sustainable management of wild Irish Atlantic salmon: Keys found through the looking-glass

The recent moratorium on the commercial at-sea driftnet fishery for wild Irish Atlantic salmon (Salmo salar L.) attempts to halt the decline witnessed in these stocks over the past three decades. The research investigated stakeholder attitudes to the perceived effects on stock recovery, in Irish rivers and estuaries, of seal predation and seal culling. Structured interviews conducted with 10 key stakeholders during June 2007 revealed divisive attitudes and a feeling of powerlessness in relation to stock recovery, which are impeding successful management of salmon stocks. However, areas of common ground exist between stakeholders, which lay the foundation for a sustainable way forward.     

Fishery cooperatives in Cuba: Potential benefits,legal feasibility,and governance pre-conditions

Currently there is a strong interest in Cuba in improving the performance of the fisheries sector with respect to social, biological, and economic outcomes. Many important fishery resources appear to be overexploited, and previous fishery regulations have had mixed success in restoring fishery stocks. The current fishing pressure could also have adverse impacts on other valuable ecosystem services that support economic activities such as dive tourism and recreational fishing. A new State policy to expand cooperative enterprises to non-agricultural sectors provides an opportunity for fishery cooperatives to be created for the first time since the early years of the Cuban Revolution. This paper explores the potential ecological, social, and economic benefits of adopting fishery cooperatives as a co-management scheme for Cuba's marine fisheries. It concludes that well-designed fishery cooperatives can offer substantial benefits to the management of the fishery sector. Based on an analysis of the relative success of fishing cooperatives worldwide, guidelines are provided for the design of fishery cooperatives in Cuba.     

Sport fisheries: Opportunities and challenges for diversifying coastal livelihoods in the Pacific

High population growth rates and poverty are likely to elevate the vulnerability of many coastal communities in the Pacific region to climate change. Alternative livelihood strategies which can generate income and simultaneously conserve fish stocks and their habitats are a priority. This paper investigates the feasibility of ‘sport fishing’ (recreational catch and release angling for particular species of predatory game fish) as such a strategy. The limited research of sport fisheries in developing countries is augmented with a review of community-based ecotourism, integrated conservation and development projects (ICDPs) and common property management literature to propose design principles. Five pre-requisite principles for the success of sport fishery enterprises are suggested. First, adequate local capacity must be available to manage a tourism business and facilities, supported by cross-scale co-management amongst stakeholders. Second, appropriate governance arrangements must be in place to ensure the equitable dispersal of benefits to all members of the local community, and conflict resolution. Third, resource-ownership boundaries and rights must be clearly delineated before the enterprise begins in order to minimise the potential for future conflict. Fourth, social, biodiversity and ecosystem service co-benefits should result from the enterprise. These should include improvements in income, health, education, food security, the status of the target and non-target species and their habitat and non-fishery ecosystem services. Fifth, monitoring and evaluation of these principles is required within an adaptive co-management framework which takes a social–ecological systems approach and includes all stakeholders in social learning and power-sharing. Through this, broader impacts of the enterprise may emerge which go beyond the standard assessment of ecotourism and ICDP success in financial or biodiversity terms. These principles now need to be tested by researching the experiences of case studies of sport fishing enterprises in the Pacific.     

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.     

Formalizing expert knowledge to compare alternative management plans: Sociological perspective to the future management of Baltic salmon stocks

Designing and implementing long-term management plans is difficult both because of the complexity of the fisheries system, and the behaviour of humans. We compared four alternative management plans for the Baltic salmon stocks through approaching experts who interpreted and expressed the views of different stakeholder groups on the options. The focus of the study was on stakeholders’ commitment to the alternative management plans. Committing enhances the probability of achieving the ultimate objective of a plan, while if stakeholders do not commit, the effects of the plan may be less predictable. Thus commitment is an important part of implementation uncertainty in fisheries management. We present how we coupled qualitative analysis with probabilistic Bayesian networks in analysing expert knowledge related to alternative long term management plans in terms of group commitment. Using a Bayesian net provides potential for creating a holistic picture of a fishery by combining the data describing fishers’ commitment with biological data regarding fish stock dynamics and with economic data analyzing economically sound fisheries management.     

Angling management organizations: integrating the recreational sector into fishery management

This paper examines ways to reduce conflicts and improve the sustainability and value of marine recreational fisheries by fully integrating the recreational sector into the management of fisheries. One possibility involves a novel approach, here called angling management organizations (AMOs), which combines three of the more pervasive and promising trends in fishery management worldwide—management devolution, strengthened harvest rights, and co-management. AMOs are community-based organizations that are designed to conform to seven basic principles of integrated fishery management, which are described below. AMOs are loosely related to rights-based producer organizations in commercial fisheries, and are expected to strengthen resource stewardship, reduce enforcement and monitoring costs, alleviate management conflicts, and produce greater long-term net economic benefits in recreational fisheries. The other organizational structures considered here, including the management status quo, do not conform to all seven principles and are not expected to be as effective as AMOs.     

The added value of participatory modelling in fisheries management – what has been learnt?

How can uncertain fisheries science be linked with good governance processes, thereby increasing fisheries management legitimacy and effectiveness? Reducing the uncertainties around scientific models has long been perceived as the cure of the fisheries management problem. There is however increasing recognition that uncertainty in the numbers will remain. A lack of transparency with respect to these uncertainties can damage the credibility of science. The EU Commission's proposal for a reformed Common Fisheries Policy calls for more self-management for the fishing industry by increasing fishers' involvement in the planning and execution of policies and boosting the role of fishers' organisations. One way of higher transparency and improved participation is to include stakeholders in the modelling process itself. The JAKFISH project (Judgment And Knowledge in Fisheries Involving StakeHolders) invited fisheries stakeholders to participate in the process of framing the management problem, and to give input and evaluate the scientific models that are used to provide fisheries management advice. JAKFISH investigated various tools to assess and communicate uncertainty around fish stock assessments and fisheries management. Here, a synthesis is presented of the participatory work carried out in four European fishery case studies (Western Baltic herring, North Sea Nephrops, Central Baltic Herring and Mediterranean swordfish), focussing on the uncertainty tools used, the stakeholders' responses to these, and the lessons learnt. It is concluded that participatory modelling has the potential to facilitate and structure discussions between scientists and stakeholders about uncertainties and the quality of the knowledge base. It can also contribute to collective learning, increase legitimacy, and advance scientific understanding. However, when approaching real-life situations, modelling should not be seen as the priority objective. Rather, the crucial step in a science–stakeholder collaboration is the joint problem framing in an open, transparent way.     

Co-management of Caribbean Community (CARICOM) fisheries

The countries of the Caribbean Community (CARICOM) have a relatively poor record of fisheries management and the need to reform fisheries governance is urgent. There is now increasing interest in getting fishers and other stakeholders more involved in management through co-management and community-based management approaches. The purpose of this paper is to examine the potentials of co-management as an alternative fisheries management strategy for the countries in the CARICOM region. Co-management is found to have potential but there will need to be capacity-building and institutional strengthening of fisheries departments, fishers and NGOs to participate in co-management. Pilot projects should be initiated to gain practical experience in co-management.     

Applicability of Individual Transferable Quotas (ITQs) in Japanese fisheries: A comparison of rights-based fisheries management in Iceland, Japan, and United States

ITQs have not yet been introduced by the Government of Japan. In coastal areas, fishery cooperative associations have traditionally played an important role in managing fisheries through self-imposed rules and peer-monitoring systems. Recently, however, the economic competitiveness of Japanese fisheries in the international market is being questioned. In this paper, a detailed examination of the pros and cons of the current system in Japan is compared to the current fishery management measures of Iceland and the United States, where attaining economically or biologically efficient outcomes may be prioritized in making fisheries management decisions. For many coastal fisheries in Japan, maintaining a management scheme in which stakeholders play an active role in determining fisheries measures seems more relevant if their priority is to maintain the stability of coastal communities and equity of stakeholders. Intensive dialog among stakeholders would be necessary to identify shared objectives of their fishery operations and to make decisions to establish specific steps toward the goal of increasing economic efficiency, environmental sustainability, or stability of communities and equity of stakeholders.     

Governance structures and sustainability in Indian Ocean sea cucumber fisheries

Good governance is paramount to the sustainability of fisheries, and inclusiveness of stakeholder groups has become the centerpiece in the ethos of managing small-scale fisheries. Understanding the effect of governance network structures on fishery sustainability can help guide governance to achieve desired outcomes. Data on resource users, fishing methods, governance networks and classifications of stock health were compiled for 17 sea cucumber fisheries in the Indian Ocean. The subjective influence of the actors and the complexity of governance networks on the health of wild stocks were analyzed. The fisheries differed widely in their resource users, fishing methods and governance networks. Little correspondence was found between the number of nodes in the governance networks and the health (exploitation status) of wild stocks. Government entities dominated the networks but neither their relative influence in the networks nor their proportionate contribution to the number of entities in the networks greatly affected stock health. These findings do not refute the benefits of inclusive governance, but rather suggest that multiple other factors (e.g. inadequate regulations, weak enforcement, high number of fishers) are also likely to play a role in influencing sea cucumber fishery sustainability. These factors must be tackled in tandem with good governance.     

Who's who in the Kenai River Fishery SES: A streamlined method for stakeholder identification and investment analysis

The Kenai River Fishery is a unique social–ecological system (SES) with nearly 50 federal, state, local, and nonprofit groups influencing its political, ecological, and social structure. While ecological data exists for this fishery, the complexity of its stakeholder relationships has not been investigated. Stakeholder interactions can directly influence how science is integrated into management decisions and therefore affect the adaptive capacity of SES, such as the Kenai River Fishery. Drawing from the existing stakeholder literature, this methods identifies and ranks the key SES stakeholders and describes their roles. This study approached the question of which stakeholders should be included in a future SES adaptive capacity study by (1) identifying the key stakeholders within the Kenai River Fishery, (2) ranking each stakeholder’s investment within the fishery using eleven categories of interaction, and (3) using these eleven categories to characterize each stakeholder's role within the SES. The largest number of stakeholders fall into the secondary investment category, showing that a relatively small number of resource managers are interacting with a large number of diverse nonprofit organizations. The top ranking stakeholders in this study will be invited to attend participatory scenarios workshops that will build the foundation for a deeper scenarios-based analysis of SES adaptive capacity.     

Transdisciplinary co-operation for an ecosystem approach to fisheries: A case study from the South African sardine fishery

Integrative approaches that involve natural and social scientists are needed to manage fisheries, but these are difficult to achieve. The process of developing a prototype, knowledge-based, electronic decision support tool for the South African sardine Sardinops sagax fishery provided a platform for fostering collaboration and achieving active participation of many stakeholders. The aim of the decision support tool is to assist managers in evaluating how effectively an ecosystem approach to fisheries (EAF) has been implemented for this fishery. The collaborative process involved a series of meetings during which knowledge was elicited from fisheries scientists, social scientists, resource managers and fishing industry representatives. Conceptualisations of the different stakeholder perspectives were developed in terms of objectives and indicators following the hierarchical tree approach recommended by FAO. This paper describes the collaborative process. Hierarchies of objectives, indicators and data sets for the human dimension of an EAF in the South African sardine fishery are introduced. The value of a transdisciplinary approach towards an EAF in South Africa is discussed.     

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.     

Corporate-cooperative management of fisheries: A potential alternative governance structure for low value small fisheries?

While the economic and environmental benefits of fisheries management are well accepted, the costs of effective management in low value fisheries, including the research necessary to underpin such management, may be considerable relative to the total economic benefits they may generate. Co-management is often seen as a panacea in low value fisheries. Increasing fisher participation increases legitimacy of management decision in the absence of detailed scientific input. However, where only a small number of operators exist, the potential benefits of co-management are negated by the high transaction cost to the individual fishers engaging in the management process. From an economic perspective, sole ownership has been identified as the management structure which can best achieve biological and economic sustainability. Moving low value fisheries with a small number of participants to a corporate-cooperative management model may come close to achieving these sole ownership benefits, with lower transaction costs. In this paper we look at the applicability of different management models with industry involvement to low value fisheries with a small number of participants. We provide an illustration as to how a fishery could be transitioned to a corporate-cooperative management model that captures the key benefits of sole management at a low cost and is consistent with societal objectives.     

Notions of justice held by stakeholders of the Newfoundland fishery

Justice is an important and contested issue in the governance of fish stocks threatened by overexploitation. This study identifies the notions of justice held by stakeholders of the fishery in Newfoundland, Canada, using qualitative interviews, and interprets these notions in light of established justice theories. The interviews are analysed using inductive and deductive coding. A central result is that inshore fishers are seen as the main claim holders, with a claim to participate and be listened to, and the opportunity to make a living from the fishery. Moreover, rules play an important role in the justice notions of the interview partners, and their justice notions are clearly plural. The stakeholder notions of justice in the Newfoundland fishery resonate with the emphasis on recognition, participation and distribution as important aspects of justice within the environmental justice approach [59-61] (Schlosberg 2004, 2007, 2013).