Spatial conflicts in New Zealand fisheries: The rights of fishers and protection of the marine environment

New Zealand fisheries legislation provides commercial fishing rights to holders of individual transferable quota (ITQ). The settlement of fisheries claims against the Crown by Mäori, New Zealand's indigenous people, brought about the transfer of ITQ holdings to Mäori, and an obligation on the Crown to recognise and provide for indigenous (customary) fishing rights over fishing grounds and other areas that have been of special significance to Mäori. Some types of customary fishing areas exclude commercial fishing and could affect recreational fishing. Fisheries legislation requires that regulatory measures be put in place to avoid, remedy or mitigate the adverse effects of fishing. The Government also aims to protect marine biodiversity by having 10% of New Zealand waters in some form of protection by 2010. The legislative processes for protecting the marine environment and establishing customary fishing areas include assessment of effects on fishing rights. This paper explores the conflicts that arise from legislative obligations to uphold the rights of fishers, to sustain fishstocks and to protect the marine environment. The paper concludes that inconsistent legislative obligations and their disparate processes have led to spatial conflicts and a race for the allocation of space. Legislative obligations need to be integrated to maintain a balance between use of fisheries resources and protection of the marine environment.     

Lesser-known consequences of managing marine fisheries using individual transferable quotas

Managing marine fisheries using output controls in the form of individual transferable quotas (ITQs) can be an attractive alternative to more traditional input controls. There are now a number of examples of where ITQ-managed fisheries have been able to reduce the impact of the major management problems in global fisheries, namely, gross over-capitalisation and effort. However, ITQs are not the perfect management tool and one of the lesser known consequences of ITQ-managed fisheries where ITQs consist of a harvest right is the implicit relationship between ITQ property rights and rights of access to the fishing grounds. This implicit spatial right to the grounds can provide obstacles in the way of allocating water-space within fishing grounds for alternative uses such as marine-protected areas, large-scale aquaculture, and wind farms. These lesser-known consequences of ITQ-managed fisheries are discussed here.     

Public management in New Zealand and its effect on institutional arrangements for managing fisheries

In the last few decades Western democracies, predominately those of British origin, have debated vigorously about how to improve public management performance. These debates have created an influx of new ideas and initiatives regarding the concept and practise of public management. New Zealand implemented public management reform further and faster than most other nations. At the same time, New Zealand implemented sweeping reforms to the management of fisheries, which led to the quota management system based on the allocation of individual transferable quota. This article briefly outlines the history of changes in New Zealand's public management system and the effect these changes have had on institutional arrangements for managing fisheries. Each institutional arrangement has been devised to accommodate the priorities and policies of the government of the day, spanning the Marine Department established in 1866 to recent structural changes made to the Ministry of Fisheries. The recent structural changes have placed greater emphasis on governance to improve performance, but have also led to substantial losses of in-house experience and institutional knowledge. This article contributes to the broader discussion about whether structural changes provide measureable benefits or the most cost effective way to deliver improvements in performance.     

Punishment and compliance: Exploring scenarios to improve the legitimacy of small-scale fisheries management rules on the Brazilian coast

This study investigated the effects of legal and societal punishment on fishermen's compliance behaviour, according to fishermen's age and level of dependency on fisheries, through the use of interviews and scenarios. Ninety-five fishermen living in a coastal park (Ponta do Tubarão Sustainable Development Reserve) in the Brazilian northeast, where controlled exploitation of natural resources is allowed, took part in this study. The results showed that age alone would not affect compliance, regardless of the level of enforcement. However, it was noticed that the fishermen who claimed to depend on the money provided by fisheries, regardless of their age, were more likely to say that they would not comply, even if enforcement were stricter. The scenario analysis showed that increased monitoring and punishment (including societal pressure) could enhance compliance, especially among younger fishermen, who claimed not to depend solely on fisheries. Therefore, fisheries management should also consider differences in social groups, and not focus solely on the enforcement and punishment mechanisms, assuring that livelihood options that consider different social needs are provided.     

Assessing the significance of the economic impact of Marine Conservation Zones in the Irish Sea upon the fisheries sector and regional economy in Northern Ireland

This paper highlights the tension between advocacy for ‘Blue growth’ in maritime policy and efforts to safeguard future economic growth via the Marine Strategy Framework Directive. In 2015, policy-makers withdrew three of four proposed Marine Conservation Zones (MCZs) in the Irish Sea from consideration for designation, due to concerns that they could significantly impact on the fisheries sector in Northern Ireland because they overlap with prawn fishing grounds in the Irish Sea. Although research has quantified the potential impact upon fishing vessels, none has quantified the impact upon the fisheries sector nor assessed the significance of this impact. Arguably, MCZ designations (or lack thereof) based on the ‘significance’ of an impact require robust underpinning evidence. This paper reports the findings of an Economic Impact Assessment, which has quantified the impact of a decline in landings upon the Northern Ireland fisheries sector and regional economy (data which is currently absent from the evidence base for the MCZ designation process in England). It finds that this will incur job losses in three fishing ports in Northern Ireland, but is unlikely to have a significant impact upon Northern Ireland's fisheries sector and regional economy in terms of jobs and Gross Value Added (GVA). In the worst case, the resulting economic impact is a decrease of £1.05–1.12 m/year GVA in Northern Ireland, which is 1.1% of the contribution of fishing and fish processing to the regional economy. Economic significance assessments, using this methodology, may be useful in supporting the evidence base underpinning MCZ designation and other aspects of marine planning.     

Defining success in fisheries and conflicts in objectives

The traditional fisheries management objectives of maximizing yield and employment lead to heavily exploited stocks. Many current high-profile disputes arise from conflicting objectives, and the proposed solutions to “the fisheries problem” are primarily particular stakeholders’ efforts to have managers implement their own objectives. I suggest many “failures” are in fact successes for other objectives. Fisheries objectives, as reflected in management actions, are changing. Two current trends are the acceptance of objectives that value less disturbed ecosystems and acceptance of fisheries allocation through dedicated access to improve the fisheries’ economic efficiency. I suggest that increased use of dedicated access will result in more congruent objectives and less conflict.     

Social impacts of a temperate fisheries closure: understanding stakeholders' views

The social dimensions of marine protected areas (MPAs) play an important role in MPA success, yet these social dimensions are little understood. We explore the social impacts arising from the establishment of an MPA using Lyme Bay (south west England) as a case study. Through a series of small group semi-structured interviews the social impacts experienced by fishermen (mobile and static gear), recreational users (divers and sea anglers) and recreation service providers (charter boat and dive businesses) were explored. The social impacts expressed varied according to activity in which the stakeholder group engaged. Negative themes included lengthening fishing trips, tension and conflict, fishermen identity, equity and uncertainty in the long-term. Positive themes included improved experiences for both commercial fishermen and recreational users, and expectations for long-term benefits. These impacts need to be understood because they influence stakeholder behaviour. Failure to interpret stakeholder responses may lead to poor decision-making and worsening stakeholder relations. These findings have implications for the success of the MPA in Lyme Bay, but also for the future network of marine conservation zones around the UK. Any assessment of MPA impacts must therefore identify social as well as economic and environmental change.     

Fishing for social realities—Challenges to sustainable fisheries management in the Cape Horn Biosphere Reserve

Social-ecological complexity challenges conservation-oriented interventions even in settings with a small number of actors and conflicts involved. This article examines the development and trajectory of King and Snow Crab fisheries in the Cape Horn Biosphere Reserve (BR), the highly remote but globally connected Southern tip of the Americas. The feasibility of the Chilean legal instrument of Marine Management Areas (MMA) is assessed as a tool for mitigating impacts of overfishing in the area. Examining the local fishers’ perspectives in complement to a context analysis we find that external management models such as the MMA are not suited to make Cape Horn fisheries sustainable. Instead, efforts should be dedicated to a continuous process of stakeholder collaboration for developing site-specific management concepts and structures. These should be embedded in the larger BR initiative. Considering the area's particular conditions, several recommendations for such a process are formulated.     

New Zealand seafood firm competitiveness in export markets: The role of the quota management system and aquaculture legislation

New Zealand's quota management system (QMS) was implemented in 1986 to address problems caused by a regulated open entry management system in place for the previous two decades. Excess capacity in the inshore fisheries caused several stocks to become depleted and conflicts to intensify between fishing sectors. The allocation of individual transferable quota (ITQ) was viewed as the best way to improve efficiency within the over-capitalised inshore fisheries and provide incentives for developing the deepwater fisheries. The expected benefits of the QMS fit with the political climate at that time, as the government was using market forces to address the deteriorating economy. This article outlines the results of a research project that involved four medium to large-sized, highly vertically integrated New Zealand seafood firms. The purpose of the project was to identify these firms’ sources of competitiveness in export markets and the process the firms used to develop sources of competitiveness, while adapting to rapid and radical changes to the political and business environment and transformation of the fisheries management system. The project's results show that the basis to seafood firm competitiveness is the security of supply to the fisheries resource provided by the QMS and aquaculture legislation. The project also outlines the role that government policies have in sustaining firm- and industry-level competitiveness. This article contributes to the broader discussion on the application of ITQ and other types of long-term access rights to the management of fisheries and does not express the views of the Ministry of Fisheries.     

Marine protected areas in Japan: Institutional background and management framework

Information on the location and area for all MPAs in Japan was collected through a comprehensive survey targeting government officials and local stakeholders. It was verified that at least 1161 MPAs exist in Japan. Of these, 1055 are implemented in conjunction with fishery regulations in the form of no-take zones. More than 30% of the individual MPAs in Japan were established by self-imposed instruments agreed by members of fishery co-management organizations. It was suggested that the autonomous MPAs are not a product of simple altruism, but rather are logical extensions of the tenure system guaranteed by the government legal system.     

Fishers' perception of a multiple-use marine protected area: Why communities and gear users differ at Mafia Island,Tanzania

This study examined the perceptions of fishers from two fishing communities with differing use histories and involvement in the long-standing (16 yr) multiple use Mafia Island marine protected area (MIMP), Tanzania. A randomly distributed questionnaire indicated that 94% of fishers believed that without the MIMP, there would be overfishing, dynamite use, destroyed habitats, and few fish. Fishers were more positive about core zones (no-take fishery closures) than general use zones (areas allowing selective fishing) as a consequence of increases in fishing pressure. Those that reported increased catches and sizes of fish since the creation of the MIMP were more likely to agree with present zone locations and more positive in general about fisheries and conservation planning. Most thought that fish size and gear restrictions were preferable to permanent closures. Perceptions differed among communities and gear users. Community and gear type explained 46% of the variance in responses about the perception that fisheries and conservation are compatible goals. Somewhat surprisingly, these effects were more important than catch increases or involvement in MIMP-related activities. The differences in perception between communities may be partly attributed to different fishing histories. Multiple-use zoning provides a means to identify and resolve conflicts and achieve what are likely universal objectives for fisheries sustainability and conservation.     

Discrete choice modelling of fisheries with nuanced spatial information

Temporary marine area closures or more permanent Marine Protected Areas are being proposed as potential options in ecosystem-based marine spatial management. These policy options are known to displace fishing effort. In this paper, EU Vessel Monitoring System (VMS) data is combined with other site and vessel information and used to model the fishing site choice decision of Irish demersal otter trawlers. Uniquely, the fishing ground options used in the analysis reflect the actual seabed contours trawled by the fleet. The fishing site choice model, based on this natural site definition is compared to an alternative destination choice model where the fleet decision is specified using a grid based site definition as employed in previous work. It is argued that the natural site specification is a more realistic specification of the fisher site choice decision. Using the preferred natural fishing site choice model, a policy scenario involving the hypothetical closure of one of the fishing ground options is then simulated to examine the possible redistribution of fishing effort.     

Performance of community-based coastal resource management (CBCRM) programs in the Philippines: A meta-analysis

Community-based coastal resource management (CBCRM) is a major conservation and fisheries management strategy in the tropics. In this study, the performance of 16 CBCRM programs in the Philippines was assessed using a meta-analysis of eight indicators that represented the perceptions of local resource users. Overall, the CBCRM programs in the Philippines were perceived to have a significant positive impact. However, the performance of each of the indicators was mixed. Although the CBCRM programs were perceived to be effective in empowering the local fishing communities, their perceived impact on improving the state of the local fisheries resources remained limited. This highlights the importance of incorporating ecological and socio-economic considerations in setting fisheries management regimes.     

Intended and unintended outcomes in fisheries learning exchanges: Lessons from Mexico and Madagascar

Fisheries learning exchanges (FLEs) bring together fisher communities to exchange knowledge and experiences, with the goal of building social capital and disseminating management techniques. In 2015 two groups of octopus fishers from Bahia de los Angeles, Mexico and Sarodrano, Madagascar travelled to Andavadoaka, southwest Madagascar to learn about the temporary fishing closures for octopus used in the region. Octopus fisheries in Madagascar and Mexico differ in several respects, particularly harvesting techniques. The FLE was qualitatively evaluated through participant observation and semi-structured key informant (KI) interviews. Thirty before-and-after interviews were carried out with 16 KIs including visitors, hosts and organisers. Informants suggested that holding the FLE at the same time as the closure openings allowed for learning benefits but carried an important opportunity cost for organisers and host participants, and that shortcomings of planning and translation capacity limited learning opportunities. Several KIs were concerned about the applicability of the Malagasy management model to the Mexican context concerned, and the FLE may have had unforeseen consequences since Malagasy fishers were excited to learn a new fishing method (trapping) from the visitors: if effective, trapping could negatively impact Malagasy octopus stocks. The exchange of knowledge in the FLE was primarily one-way, from host to visitor, and most organisers did not view themselves as participants. Recommendations to improve the effectiveness of future FLEs include: (i) improving facilitation and translation capacity to promote dialogue, (ii) focusing on key messages, (iii) selecting appropriate participants and (iv) recruiting a specialist to organise and lead exchanges.     

Comparative analysis of factors influencing spatial distributions of marine protected areas and territorial use rights for fisheries in Japan

As increasingly large extents of the global oceans are being managed through spatial measures, it is important to identify area characteristics underlying network distributions. Studies discerning spatial patterns in marine management have disproportionately focused on global networks. This paper instead considers the single country context of Japan to illuminate within-country drivers of area-based conservation and fishery management. A dataset containing potentially relevant socioeconomic, environmental, and fisheries factors was assembled and used to model prefecture-level counts of marine protected areas (MPAs) and territorial use rights for fisheries (TURFs) throughout Japan's waters. Several factors were found to significantly influence the number of TURFs in a particular area, whereas MPA patterns of use remain largely unexplained. TURFs are frequently noted as more suitable for managing fisheries of low mobility species and our analysis finds greater use of TURFs in areas that rely heavily on benthic catch. The number of trading ports was also found to be positively related to TURF distributions, suggesting economic infrastructure may influence the use of this fisheries management tool. In-line with global analyses, MPA patterns of use were not found to be significantly related to any of the potential explanatory variables after correcting for the number of statistical comparisons that were carried out. Differences in our ability to model the use of TURFs and MPAs may arise due to the narrower objectives associated with the former (e.g., income, employment) in comparison to the often broad and varied goals that motivate use of the latter.     

Engaging Los Angeles County subsistence anglers in the California marine protected area planning process

Ecosystem-based management is more successful when a great diversity of stakeholders is engaged early in a decision-making process. Implementation of the California Marine Life Protection Act (MLPA) has been stakeholder-based, coordinating the participation of a wide range of people including divers, fishermen, conservationists, local officials, business owners and coastal residents. Although commercial and recreational fishermen have actively participated throughout the MLPA implementation process, and research related to California’s sport and commercial fisheries has been integrated into the process, pier and shore anglers have been relatively unengaged as stakeholders. This study was completed to generate information about pier angler understanding and sentiment towards marine protected areas (MPAs), as well as to educate anglers on the MLPA implementation process in southern California and inform them on involvement opportunities. Of the 3030 pier anglers surveyed over 12 months, 78% only fish for subsistence from piers and from shore (never from boats); 84.6% are of non-White/Euro-American ethnicity and speak English as a second language; and 82% indicated that they were supportive of establishing a strong network of MPAs in southern California, specifically fully-protective no-take marine reserves. This study is an example of an alternative and customized method of outreach designed to reach a unique and previously unengaged stakeholder group, which stands to be affected by the implementation of the MLPA in California. Engaging such non-traditional stakeholders in public policy may be critical for decision makers to gauge all views from those standing to be affected by a policy—not just the views of those that regularly attend policy meetings—and for the ultimate success of policy implementation and community support.     

Challenges to achieving greater and fairer stakeholder involvement in marine spatial planning as illustrated by the Lyme Bay scallop dredging closure

The statutory closure of 60 square miles of Lyme Bay to towed fishing gear in 2008 marked the culmination of nearly 20 years of discussions between conservationists and fishermen. Prior to the 2008 decision, voluntary, bottom-up led agreements resulted in inadequate protection of the bay's biological resources and significant erosion of social capital. Lyme Bay provides an excellent case study of the challenges likely to be posed by wider stakeholder involvement imposed under the new Marine Act. This paper examines a broad range of perspectives in relation to the Lyme Bay consultation and subsequent closure, via semi-structured interviews with 25 representatives of different interest groups in Lyme Bay. All respondents acknowledged significant flaws in the process leading to the Lyme Bay decision and felt the Marine Act was well placed to tackle many of these criticisms. However, while the Marine Act should provide a framework for resolving conflicts, it will not prevent them. Success will depend on collaboration between different marine interests, and also on the government acknowledging that outcomes are unlikely to favour everyone in the short-term and that top-down interventions are inevitable.     

Expanding fisheries co-management to ecosystem-based management: A case in the Shiretoko World Natural Heritage area,Japan

Fisheries co-management in the Shiretoko World Natural Heritage area was expanded to ecosystem-based management, in which the fisheries sector plays an essential role in management. A marine management plan was drawn up to define the management objectives, strategies to maintain major species, and methods for ecosystem monitoring. A network of coordinating organizations from a wide range of sectors was established to integrate policy measures. Experience from this case could inform ecosystem-based management in other countries where large numbers of small-scale fishers take a wide range of species under a fisheries co-management regime.     

Use of Continuous Plankton Recorder information in support of marine management: applications in fisheries, environmental protection, and in the study of ecosystem response to environmental change

The Continuous Plankton Recorder (CPR) survey was conceived from the outset as a programme of applied research designed to assist the fishing industry. Its survival and continuing vigour after 70 years is a testament to its utility, which has been achieved in spite of great changes in our understanding of the marine environment and in our concerns over how to manage it. The CPR has been superseded in several respects by other technologies, such as acoustics and remote sensing, but it continues to provide unrivalled seasonal and geographic information about a wide range of zooplankton and phytoplankton taxa. The value of this coverage increases with time and provides the basis for placing recent observations into the context of long-term, large-scale variability and thus suggesting what the causes are likely to be. Information from the CPR is used extensively in judging environmental impacts and producing quality status reports (QSR); it has shown the distributions of fish stocks, which had not previously been exploited; it has pointed to the extent of ungrazed phytoplankton production in the North Atlantic, which was a vital element in establishing the importance of carbon sequestration by phytoplankton.The CPR continues to be the principal source of large-scale, long-term information about the plankton ecosystem of the North Atlantic. It has recently provided extensive information about the biodiversity of the plankton and about the distribution of introduced species. It serves as a valuable example for the design of future monitoring of the marine environment and it has been essential to the design and implementation of most North Atlantic plankton research.