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.     

Editorial: Reflections from Ireland

Responses of governance systems to change in coastal and marine ecosystems vary from country to country around the globe. Lessons can be learned from country specific case studies, as national governments strive to adapt and respond to issues of concern. This short paper highlights the benefits of a country-specific, special edition of Marine Policy, with a focus on Ireland. Despite the uniqueness of socio-ecological setting, many of the issues faced by policy makers in Ireland, such as the reconciliation of economic development and conservation needs, are shared elsewhere. This special edition was produced at the end of the ‘Celtic Tiger’ in Ireland. As a result, it reflects an era when economic development was very much a priority. The same period represented an unparalleled investment in marine science since the foundation of the State in 1922. Despite this, the papers in the Special Edition point to varying degrees of progress in policy integration and implementation. Papers covering a range of sectors (fisheries, ocean energy, conservation and fisheries) and disciplines (economics, science and management) will be of interest to academics, policy makers, students and practitioners of marine policy.     

“Fish as food”: Exploring a food sovereignty approach to small-scale fisheries

This article explores how conceptualizing fish as food, rather than primarily as a resource or commodity supports a shift towards more systems-based approaches to engaging with fisheries (i.e. considering the relationships between ecosystems, people, management and policy). A “fish as food” lens is operationalized by drawing on the theory and practice of food sovereignty. While fishing people and communities have always been a core part of the food sovereignty movement, there have been limited efforts in the academic literature to explore these connections directly. Drawing on examples primarily from a Canadian context, it is argued that a deeper engagement between fisheries and food sovereignty is long overdue, particularly as a growing body of research on small-scale fisheries seeks to address social-ecological relationships and issues of power that are also at the core of a food sovereignty approach. This article identifies the opportunities and limitations of engaging with food sovereignty in the context of small-scale fisheries and suggests a series of key questions for future fish as food research and policy.     

Flood and coastal erosion risk management policy evolution in Northern Ireland: “Incremental or leapfrogging?”

Climate change poses a significant challenge for the future of Northern Ireland’s coast due to impacts that include, inter alia, mean sea level rise of between 13 cm and 74 cm by 2050. Whilst flooding is regarded as a major hazard in the United Kingdom (UK), to date Northern Ireland’s experiences of coastal flooding have been infrequent and less severe compared to those in England and Wales. Similarly, coastal erosion has historically been, and remains, only a minor concern in Northern Ireland. Partly as a result of this, Government administrative arrangements for Flood and Coastal Erosion Risk Management (FCERM) in Northern Ireland operate in the absence of any statutory provision for coastal erosion, as well as without formal or strategic shoreline management planning and any integrated flood and coastal erosion risk management policy. This paper provides a commentary on Northern Ireland’s approach to FCERM, comparing this with its UK counterparts, highlighting both congruence and divergence in policy evolution and development. It is noted that the recent EU Floods Directive has been a significant catalyst and that the current institutional landscape for FCERM is in flux.     

Economic impacts of seafood production growth targets in Ireland

This paper examines the potential economic impact of the Irish government strategy for the development of the seafood sector in Ireland, Food Harvest 2020 (FH2020). The seafood industry accounts for a large proportion of income and employment in peripheral coastal areas. Many of these regions are predominantly rural and they are largely dependent on the primary fisheries sector. Moreover, the services and retail businesses in these areas are heavily dependent on direct spending from the fisheries, aquaculture and seafood processing sectors. A social accounting matrix (SAM) approach with (1) set to zero purchase coefficients for all directly impacted industries and (2) changes in output converted to final demand shocks is used to calculate the economic and employment impact on the rest of the economy from an increase in the output in the fisheries, aquaculture and seafood processing sectors in Ireland. The results suggest fisheries sectors have strong links with the rest of the economy hence an important economic impact from a policy perspective.     

Social indicators of vulnerability for fishing communities in the Northern Gulf of California,Mexico: Implications for climate change

Marine fisheries support the livelihoods of millions of people worldwide. These fisheries and the communities that depend on them are highly vulnerable to climate change and other interacting anthropogenic threats. The cumulative and interacting effects of these stressors could potentially produce declines in fish production, which would significantly impact artisanal fishers. Assessing relative vulnerability of fishing communities to anthropogenic stressors is an important first step to identifying mitigation or adaptation strategies. This study assessed the vulnerability of 12 coastal communities in the Northern Gulf of California to disruptions in fishing activities from anthropogenic stressors, including climate change. The Northern Gulf is a megadiverse area and a major source of fishery resources. Quantitative indicator indices based on secondary and primary data were developed to assess the three aspects of vulnerability: sensitivity, exposure, and adaptive capacity. The key components of vulnerability varied amongst communities. Vulnerability was higher in communities with higher fishing dependence and lower socioeconomic diversification. The approach presented here provides important insights into the type of policy actions that might be needed in different communities for adaptation and mitigation.     

Preparedness of key coastal and marine sectors in Ireland to adapt to climate change

Preparedness to adapt to the impacts of climate change was assessed for three important sectors of activity within the Irish coastal and marine environment, namely tourism, fisheries, and conservation of biodiversity. Information on the current status of each sector is a valuable point of reference in terms of accessing contribution to the implementation of future national adaptation efforts. A modified version of the National Adaptive Capacity (NAC) framework developed by the World Resources Institute was used to assess the three sectors of activity. This framework is structured around five functions: assessment, prioritisation, coordination, information management, and climate risk reduction; results of the assessment suggest that all three sectors are at the nascent stages of the climate change adaptation process. Currently there is no dedicated national policy guidance or legal support mechanism on adaptation in Ireland; hence there is no national financial commitment to support implementation of adaptation actions for any of the sectors assessed. Subjecting these three selected sectors of activity to such an assessment enables identification of existing actions that can potentially support current adaptation, as well as where issues such as knowledge gaps and lack of policy support hinder progress.     

International,regional and national commitments meet local implementation: A case study of marine conservation in Northern Ireland

It is increasingly accepted that humanity’s unsustainable use of the marine environment is causing the degradation of the very marine ecosystems it relies upon. This awareness had led to the generation of a significant number of international agreements and conventions aimed at improving marine management and conserving marine ecosystems. In the European Union, this has resulted in the evolution of an extensive array of environmental legislation and policy. In addition, the United Kingdom and its devolved regions have been developing their own policies and legislative tools to advance marine conservation and management. Party to all of these tiers of governance, Northern Ireland has made numerous international, regional and national commitments to protecting and restoring marine ecosystems. Here those commitments are explored in terms of the local political, administrative and governance reality in Northern Ireland. A complex governance structure and lack of interdepartmental co-operation is shown to severely hinder Northern Ireland’s ability to meet stated commitments. Underfunding and lack of political will also seriously hamper conservation efforts. Findings indicate that the integration of all marine management functions into a single marine management organisation would greatly facilitate Northern Ireland’s progress and that the development of an ecologically coherent network of marine protected areas would go a long way towards fulfilling its conservation commitments. This case study demonstrates some of the hurdles small nations face in meeting their responsibilities under regional and international agreements and highlights the gap between a nations conservation commitments and its successful implementation of policy to fulfil them.     

Evaluating conditions for transboundary Marine Spatial Planning: Challenges and opportunities on the island of Ireland

Transboundary cooperation is viewed as an essential element of Marine Spatial Planning (MSP). While much of the MSP literature focuses on the need for, and benefits of, transboundary MSP, this paper explores the political and institutional factors that may facilitate the effective transition to such an approach. Drawing on transboundary planning theory and practice, key contextual factors that are likely to expedite the transition to transboundary MSP are reviewed. These include: policy convergence in neighbouring jurisdictions; prior experience of transboundary planning; and good working relations amongst key actors. Based on this review, an assessment of the conditions for transboundary MSP in the adjoining waters of Northern Ireland and the Republic of Ireland is undertaken. A number of recommendations are then advanced for transboundary MSP on the island of Ireland, including, the need to address the role of formal transboundary institutions and the lack of an agreed legal maritime boundary. The paper concludes with some commentary on the political realities of implementing transboundary MSP.     

The 1995 FAO Code of Conduct for Responsible Fisheries: Adopting,implementing or scoring results?

The paper presents the results of a major assessment of Code adoption and implementation in nine fishing countries in Asia (China, Thailand, Vietnam), Africa (Senegal, Guinea Bissau and Guinea) and in the Caribbean (Jamaica, Dominican Republic and Trinidad & Tobago), which are part of the international research project ECOST. The main findings are that the Code as an international policy instrument remains relevant and adaptable to the current international fisheries context, and that its guiding principles and provisions have been endorsed and adopted in almost unanimous fashion by the countries covered, and integrated into fisheries policy letters and legal frameworks. However, results also suggest that tackling the truly difficult issues in fisheries, such as combating illegal, unreported and unregulated (IUU) fishing or adjusting fishing overcapacity has been a lot less successful. The design and implementation of necessary measures often remains very weak in domains with important economic and political dimensions. The causes for this are attributed to a mix of administrative inertia, lack of political will and stamina, and short-sighted economic considerations.     

New perspectives in small-scale fisheries management: challenges and prospects for implementation in South Africa

Worldwide, the past 15–20 years has seen a significant shift in thinking and approaches to the management of small-scale fisheries. This is in response to the recognition that conventional fisheries management is not equipped to deal with the complexities, uncertainties and challenges prevalent in small-scale fishery systems. Consequently, a new fisheries paradigm is emerging based on the principles and ideas underpinning systems thinking, complexity theory, participatory democracy and adaptive management. Although fishery science is required to inform management decisions, it must be seen as one of the inputs needed for effective governance. Incorporation of other disciplinary perspectives, knowledge sources and local information is considered necessary for understanding the fishery system and identifying appropriate management responses. Although South Africa has incorporated many of these ideas and principles into broad policies and legislation governing resource management, implementation of this new paradigm in the context of small-scale fisheries is proving difficult. However, recent developments such as the recognition of the socio-economic rights of this group of fishers, the formulation of a new draft small-scale fisheries policy, efforts to identify and address human dimensions in fisheries through research and stakeholder workshops, as well as opportunities for greater participation in policy formulation and management, are all indicative of a shift in institutional culture and approach to this sector. This paper aims to provide an overview of the main ideas underpinning the new small-scale fisheries paradigm and explores the application of these ideas in the context of small-scale fisheries in South Africa. Challenges and prospects for implementing this new management paradigm are discussed, as well as some practical ideas for progressing this new approach.     

Selecting and assessing social objectives for Australian fisheries management

This paper details Australian research that developed tools to assist fisheries managers and government agencies in engaging with the social dimension of industry and community welfare in fisheries management. These tools are in the form of objectives and indicators. These highlight the social dimensions and the effects of management plans and policy implementation on fishing industries and associated communities, while also taking into account the primacy of ecological imperatives. The deployment of these objectives and indicators initially provides a benchmark and, over the life of a management plan, can subsequently be used to identify trends in effects on a variety of social and economic elements that may be objectives in the management of a fishery. It is acknowledged that the degree to which factors can be monitored will be dependent upon resources of management agencies, however these frameworks provide a method for effectively monitoring and measuring change in the social dimension of fisheries management.Essentially, the work discussed in this paper provides fisheries management with the means to both track and begin to understand the effects of government policy and management plans on the social dimension of the fishing industry and its associated communities. Such tools allow the consideration of these elements, within an evidence base, into policy arrangements, and consequently provide an invaluable contribution to the ability to address resilience and sustainability of fishing industries and associated communities.     

Venue shifts and policy change in EU fisheries policy

Over the past two decades profound changes have taken place in the European Union's (EU) fisheries policy. Partly these changes have occurred within the EU's Common Fisheries Policy itself, but partly policy change has been effected by the application of environmental legislation and policy instruments to fisheries issues. This article argues that the process of policy change in EU fisheries policy can best be understood in terms of the interaction of policy images and policy venues that is at the core of the punctuated equilibrium theory of policy-making. As a result of the rise of a biodiversity perspective on fisheries issues, environmental policy-makers have become active in fisheries issues, which has led to profound changes in both the content of fisheries policies and the institutional organisation around this issue area.     

渔业社区管理在中国的实施探讨

传统的渔业管理强调了政府的直接控制管理,忽视了渔区在其中的作用。渔业社区管理是随着市场经济和政府管理的发展而被作为一种解决传统渔业管理困境的途径提出。为此,首先总结了渔业社区管理的概念,并对目前有关各国的实践进行分类。在此基础上,利用制度经济学的理论分析该管理制度的作用机制及实施条件。然后,分析该管理制度在我国实施的必要性和可行性,渔业社区管理是解决目前我国渔业管理中存在诸多问题的一种合适方案,且当前国家政策和渔区实际也为其提供良好的实施环境。最后,提出从政府管理者和渔民或与渔业相关的利害人两个方面创造实施渔业社区管理的条件。     

Validating RAPFISH sustainability indicators: Focus on multi-disciplinary aspects of Indian marine fisheries

In determining the importance of fisheries sustainability indicators, stakeholders’ interest plays a defining role in the fisheries management practices. The indicator based tools such as RAPFISH have been available for sustainability assessment of fishery resources. In the present study, procedures to validate the pre-selected RAPFISH, which is a multidisciplinary indicator based evaluation tool for measuring the sustainability of fishery resources, are applied. The sustainability indicators were subjected to validation process based on feedback from resource owners, users and experts, using Multi-Criteria Analyses such as Weighted Sum Model and Analytic Hierarchy Process. Based on the validation results, suggestions have been made to improve methodology and its effective application in practice. This paper demonstrates RAPFISH as a potentially effective multidisciplinary tool for evaluation of sustainability of fishery resources.     

Integrated environmental assessment of fisheries management: Swedish Nephrops trawl fisheries evaluated using a life cycle approach

Fisheries management needs to broaden its perspective to achieve sustainable resource use. Life cycle assessment (LCA) is an ISO standardized method to evaluate the environmental impacts of products using a broad and systematic approach. In this study, the outcome of a management regime promoting species-selective trawling in Swedish Nephrops trawl fisheries was studied using LCA methodology by quantifying the impacts per kilogram of landing using two different fishing methods. Demersal trawling has previously been found to be both energy intensive and destructive in terms of seafloor impact and discards. It is demonstrated that species-selective trawling fulfils management objectives, although with tradeoffs in terms of fuel consumption and associated GHG emissions. To prioritize between impacts, one must be aware of and quantify these potential tradeoffs. LCA could be an important tool for defining sustainable seafood production as it can visualize a broad range of impacts and facilitate integrated, transparent decision making in the seafood industry. It is also concluded that, with current LCA methodology, use of total discarded mass could increasingly be distinguished from potential impact by applying two new concepts: primary production requirements and threatened species affected.     

“Us” and “them”. Fishermen from Gandía and the loss of institutional legitimacy

This paper analyses, using a qualitative methodology, some of the possible causes of the recognised failure of fisheries policy concerning traditional fisheries. Through a case study in a Spanish Mediterranean port (Gandia), it concludes that the basic problem is the lack of legitimacy of political institutions for fishermen. Any attempt to implement an effective fisheries management must recover this legitimacy, by harnessing existing social capital of these communities through the adoption of new models of fisheries co-management and the revaluation of local knowledge.     

Beach sediment temperature variations through depth and time

Data obtained from a site at mean tide level on Belfast Lough, Northern Ireland, show temperature fluctuations on various timescales. Hourly means differ markedly from month to month but are similar for different depths during the same month. The short-term temperature fluctuations recorded at the surface are largely dissipated at a sediment depth of 20 cm with the proportion of total flux occurring at any depth remaining similar irrespective of the absolute temperature range. It is suggested that temperature flux ratios may provide an objective in situ assessment of beach exposure and/or water flow through sediments. A plea for a standardized methodology is made.     

Fishery-seal interactions in Irish waters: Current perspectives and future research priorities

Interactions between seals and the fishing industry are an on-going problem in Ireland and indeed globally across the range of most seal species. These interactions occur at both the operational (seal damage to catches and fishing gear) and biological (competition for shared resources) level. With declines in fish stocks there has been increased interest in the extent of competition for resources between commercial fisheries and seals. High levels of seal damage perceived by the fishing industry has led to frequent calls for seal culls, highlighting the significance of the problem. However, the scale of interaction between seals and commercial fishing and aquaculture in Ireland heretofore remained unclear. A comprehensive review of existing data, augmented with data from key stakeholders on the current state of play is presented to provide a realistic and representative account of the situation. This suggests that seal interactions with commercial fisheries in Ireland are most significant in inshore (<12 nautical miles from shore) static-net (or passive) fisheries (e.g. gill/tangle nets) and have increased following the driftnet ban in 2006, which suggests displacement of seal interactions from salmon to other fisheries. The industry highlighted pollack, angler fish, cod, and turbot fisheries as the main inshore fisheries currently impacted by operational damage to gear and catch by seals. Seal damage to line-caught salmon continues, with industry feedback suggesting large geographical variation in the range of damage levels reported. Salmon farming installations are also increasingly being targeted by seals, with significant losses due to seal depredation being reported. In the absence of robust data on seal depredation, the extent to which changes in fishing gear and practices have reduced damage levels, or resulted in displacement of seal foraging effort, is unknown. Recommendations are made to suggest how research efforts should be focused to address critical data gaps identified in the study.     

Managing sino-ghanaian fishery relations: A political ecology approach

A global recurring challenge for marine managers and policy makers is the effective management of fisheries conflicts. This study demonstrates the usefulness of a political ecology approach in understanding the complexity of conflict in increasingly internationalized national fisheries. By doing so it aims to provide an alternative approach to the environmental security perspectives, predicated on scarcity narratives, that often underpin policy on fishery conflicts. Using a localised example of industrial Chinese and local artisanal fishermen conflict in Ghana, this paper reveals a complex account of contesting ‘access’ to resources, in material and nonmaterial terms, that moves beyond an ‘absolute scarcity’ driven narrative. The conflict is shown to be one, in part, focussed around spatially fixed areas as well as moral claims of correct ways of fishing that reflect social tensions within the local fishing community. Both aspects show long term motivations to keep resource access, rather than being concerned with in the moment struggles over scarce resources. This work also highlights the existence of cooperation between groups of artisanal fishermen involved in transhipment with Chinese fishermen, revealing the complex nexus of winners and losers produced by environmental, social and political factors. In sum, policy must acknowledge that conflict is rarely produced purely by scarcity, and that broader social and political factors often combine in a variety of forms to produce localised conflict. If these complexities are ignored, fisheries policy runs the risk of unintentionally exacerbating conflicts and disadvantaging those who it aims to help.