The irony and the exclusivity of Atlantic bluefin tuna management

The eastern stock of Atlantic bluefin tuna (thunnus thynnus) was recently nominated for protection under the Convention on International Trade in Endangered Species of Flora and Fauna (CITES). That nomination failed, which leaves management of the heavily overfished stock in the hands of the International Commission for the Conservation of Atlantic Tunas (ICCAT). This paper reviews the history of ICCAT management of Atlantic bluefin tuna to show that (1) early elimination of competitive forces prevented agreement on management in keeping with scientific advice, resulting in the steep decline of the stock, (2) even just the threat of a CITES listing can provide temporary impetus for marked improvement in ICCAT management, and (3) long-term sustainable management by ICCAT will require continued economic and political pressure.     

International fisheries agreement: Review of the International Commission for the Conservation of Atlantic Tunas: Case study—Shark management

To properly manage world fisheries, especially highly migratory species, there are numerous treaties that have been implemented by specialized international fishery commissions. One of the oldest organizations is the International Commission for the Conservation of Atlantic Tunas (ICCAT). The main focus of this review was to summarize the history, roles and responsibilities of ICCAT, and to evaluate ICCAT's management of sharks in general and specifically for shortfin mako (Isurus oxyrinchus) shark. This review found that the Convention was established 40 years ago, but it was not until 2004 that the commission conducted its first population assessment on pelagic sharks.     

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.     

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.     

大西洋金枪鱼渔业现状分析

本文采用大西洋国际金抢鱼保护委员会ICCAT的报告和统计常设委员会（SCRS）数据库，统计分析了1978-2002年大西洋金抢鱼的渔获种类及渔具渔法。结果表明：按种类分黄鳍金枪鱼（占28％）、鲣鱼（22％）、长鳍金枪鱼（15％）、大眼金枪鱼（11％）、其他种类（8％）；按渔具分围网（42％）、延绳钓（29％）、饵钓（22％）、其它渔具（7％）。同时分析了不同海域的渔获种类、渔获量波动情况和原因。     

Taiwan's response to international fisheries management after 2005 as influenced by ICCAT and fishers' perception

It is widely recognized that fishing states are obliged to exercise flag state responsibility over their vessels. In an attempt to become a responsible fishing actor, Taiwan has endeavored to manage its distant water fishing fleet in accordance with international fisheries management. However, the long-standing problems of illegal, unreported and unregulated (IUU) fishing, fish laundering, and fishing overcapacity, which remained unsolved during the 1990s and early 2000s, brought its management capability into doubt. Failure to address these problems undermined the credibility of all management measures and ultimately resulted in a recommendation adopted by International Commission for the Conservation of the Atlantic Tunas (ICCAT) in 2005. This recommendation significantly affected Taiwan's distant water fishing policy. This paper examines how Taiwan assimilated this outside force into its fishing policy as a new response to international fisheries management and how fishers perceived this response. It shows that Taiwan's efforts in controlling distant water fisheries marked a big change, specifically manifest in three noticeable actions - reducing excessive bigeye-targeted efforts, deterring IUU fishing, and strengthening fisheries management. The study advises that management of small tuna vessels be effectively exercised and recommends future actions on providing subsidies for fishers to partially offset costs incurred by rule compliance, streamlining their administrative work, enhancing communication with them, putting more enforcement and meaningful penalties in place. Finally, the study indicates the existence of an interaction in the international fisheries management scheme, potentially favoring Taiwan to bargain for fishing rights and a favorable status in the participation of regional fisheries management organizations (RFMOs) in the future if it continues to exercise effective control of distant water fisheries.     

Fishery management as a governance network: Examples from the Gulf of Maine and the potential for communication network analysis research in fisheries

It has been suggested that the fisheries management process with multiple, informed stakeholders and socio-economic, political, and scientific complexity can be considered a governance network. This exploratory study applied communication network analysis (CNA) measures and methods to assess two cases of US federal fishery management in the Northwest Atlantic—Atlantic herring and sea scallop. Through questionnaires and interviews, CNA maps were constructed and quantitative measures of network structure and function (density, weighted average path length) and centrality measures for individual network members (degree, betweenness) were derived using InFlow software. The results show that fishery governance networks are horizontally and vertically integrated across levels of government and public–private–nonprofit sectors. The findings validated existing understanding of fisheries management as a contested, competitive management context among stakeholders, and provided new insights about the effectiveness of information sharing across the network and the critical role of bridgers connecting disparate subgroups. Fisheries management can be conceptualized and analyzed as governance networks, and the paper discusses additional research questions, refinements needed for application of the research methods, and ramifications for managers (e.g., can resource managers manage networks).     

On the role of visualisation in fisheries management

Environmental change has focused the attention of scientists, policy makers and the wider public on the uncertainty inherent in interactions between people and the environment. Governance in fisheries is required to involve stakeholder participation and to be more inclusive in its remit, which is no longer limited to ensuring a maximum sustainable yield from a single stock but considers species and habitat interactions, as well as social and economic issues. The increase in scope, complexity and awareness of uncertainty in fisheries management has brought methodological and institutional changes throughout the world. Progress towards comprehensive, explicit and participatory risk management in fisheries depends on effective communication. Graphic design and data visualisation have been underused in fisheries for communicating science to a wider range of stakeholders. In this paper, some of the general aspects of designing visualisations of modelling results are discussed and illustrated with examples from the EU funded MYFISH project. These infographics were tested in stakeholder workshops, and improved through feedback from that process. It is desirable to convey not just modelling results but a sense of how reliable various models are. A survey was developed to judge reliability of different components of fisheries modelling: the quality of data, the quality of knowledge, model validation efforts, and robustness to key uncertainties. The results of these surveys were visualized for ten different models, and presented alongside the main case study.     

Managing U.S. Atlantic large whale entanglements: Four guiding principles

Fatal entanglements in fishing gear threaten marine mammal populations worldwide. The management of entanglements of large whales, such as the North Atlantic right whale (Eubalaena glacialis), with commercial fisheries, is a challenge given the species’ small population size, economic consequences of regulations, and the general lack of data on entanglements. The U.S. Marine Mammal Protection Act (MMPA) requires development of programs to limit marine mammal entanglement in commercial fishing gear. Following a retrospective look at implementing aspects of the MMPA, a set of guiding principles were developed with associated best practices useful in reducing fatal large whale entanglement in fishing gear. Among these are: 1) involve stakeholders early in the decision making process; 2) establish a transparent management strategy that includes critical needs to guide research; 3) use a variety of tools such as an established process for receiving new information and ideas; and 4) incorporate adaptive management which considers the constraints of dynamic (rapid) changes to some fixed fishing gear. Efforts to reduce worldwide marine mammal bycatch will typically occur in a data-limited environment as experienced with U.S. Atlantic large whale entanglements. The guiding principles will remain as key tools for reducing large whale bycatch in fisheries as they build upon common practices. These insights developed over two decades of management can potentially help others to address similar bycatch problems.     

Sociocultural institutions in Norwegian fisheries management

Many policymakers attribute the success of fisheries management regimes to the design and implementation of particular regulatory tools. While sound design and effective implementation are crucial elements of any successful regulatory action, fisheries policymakers and regulators should also account for the heterogeneous sociocultural institutions of partner communities. The success of fisheries policies relies on compliance and, ideally, cooperation (accepting policies, i.e. not protesting or otherwise strongly agitating against the system) from fisheries stakeholders. Even a policy that is sound in design and flawless in execution is at risk of failure if target stakeholders obstruct or otherwise undermine the system. This paper investigates how institutions, at various levels of scale and formality, play a role in determining the degree of compliance and/or cooperation that a fisheries management regime enjoys. In particular, it will examine the issue of Individual Vessel Quotas (IVQs) in Norway, and the response of fishing communities to the trade liberalization of IVQs.     

Managing Bluefin Tuna in the Mediterranean Sea

Atlantic Bluefin Tuna is an important but not well managed fishery in the Mediterranean Sea. In this paper, management system is evaluated with information on stock status, resource rent, and total employment. The non-restrictive implementation of International Commission for the Conservation of Atlantic Tunas (ICCAT) policies is found to be the institutional reason for its management failure, while the common-property and shared stock nature of this fishery is the fundamental reason. To address these major issues, policy schemes are proposed to help sustainably manage this valuable resource in the Mediterranean Sea.     

Optimising fisheries management in relation to tuna catches in the western central Pacific Ocean: A review of research priorities and opportunities

Some of the most important development goals for the countries and territories of the Western and Central Pacific Ocean (WCPO) involve the sustainable management of their fisheries in light of environmental, economic and social uncertainties. The responses of fish populations to variability in the marine environment have implications for decision making processes associated with resource management. There is still considerable uncertainty in estimating the responses of tuna populations to short-to-medium-term variability and longer-term change in the oceanic environment. A workshop was organised to examine how advances in oceanography, fisheries science and fisheries economics could be applied to the tuna fisheries of the WCPO and in doing so identify research priorities to improve understanding relevant to progressing management. Research priorities identified included: (i) improved parameterisation of end to end ecosystem model components, processes and feedbacks through expanded biological observations and incorporation of higher resolution climate models; (ii) development of seasonal and inter-annual forecasting tools enabling management responses to short-term variability in tuna distributions and abundances; (iii) improved understanding of the population dynamics of and the energy transfer efficiencies between food web components; (iv) assessment of the optimal value of access rights and overall fishery value under multiple scenarios of tuna distribution and abundance and influences on decision making by fisheries managers and fleets and (v) development of management strategy evaluation frameworks for utilisation in the implementing and testing of fishery management procedures and to help prioritise research directions and investment. Issues discussed and research priorities identified during the workshop have synergies with other internationally managed fisheries and therefore are applicable to many other fisheries.     

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.     

The justification,design and implementation of Ecological Risk Assessments of the effects of fishing on seabirds

Many marine species are threatened by high levels of incidental mortality in fisheries. This paper reviews the design of selected recent, detailed Ecological Risk Assessments (ERAs) of the effects of fishing on seabirds. Several aspects of ERA methodology for seabirds are still in development, including the most appropriate ways to: predict seabird distribution and fisheries overlap; handle data gaps; compare productivity and susceptibility among species; and incorporate data on bycatch. Nor is there consensus on rules for selecting species or populations for inclusion in assessments, the appropriate spatial and temporal resolution for the analyses, and the definition of risk. Despite these uncertainties, the clear benefits of undertaking quantitative or semi-quantitative ERAs include the identification of particularly vulnerable species or populations and of key areas and seasons in which bycatch may be occurring, and the highlighting of data gaps and priorities for future monitoring. ERAs are likely to be particularly effective where explicit links are established at the outset between the outcomes or conclusions of the ERA and management responses. A precautionary approach to bycatch mitigation can then be embedded in the broader fisheries management framework. However, this requires that the ERA process is not overly complex or is prolonged to the extent that it draws attention away from existing responsibilities and commitments to reduce bycatch per se. When selecting the best approach, it is vital to balance desired outputs against the availability of data for the assessment, and to deal with data gaps in a precautionary manner.     

Toward the conservation and management of Sedlo Seamount: A case study

Seamount-associated communities and ecosystems have proven to be highly vulnerable to the impact of human activities. Globally, seamount and cold-water coral habitats and species, which often go along with each other, are considered a priority for developing conservation and sustainable management measures within and beyond national jurisdiction. Seamounts may be good candidates for site-based management such as by means of marine protected areas (MPAs), due to their singularity and isolation. In the north-east Atlantic, so far, there are only two seamounts managed as marine protected areas, both in the waters of the Azores, and several others as closed areas to fisheries by Northeast Atlantic Fisheries Commission (NEAFC).This paper describes, using the example of Sedlo Seamount, the development of a framework for the management of activities and interests of a potential offshore marine protected area. The work is based on the scientific results of the OASIS project and on input from various stakeholders, including fishery organizations, government and scientists. It reviews the current state of the site in terms of natural setting, existing uses and potential threats and proposes boundaries and regulations with the overall goal to manage human activities around Sedlo in a way that protects its ecosystem function and biodiversity, and its significance as a rather unexploited example of a seamount within a network of marine protected areas in the NE Atlantic. The resulting proposed management plan is a fundamental prerequisite to the establishment of the Sedlo Seamount as an offshore MPA, contributing to the OSPAR network of MPAs in the north-east Atlantic.     

Enacting and contesting neoliberalism in fisheries: The tragedy of commodifying lobster access rights in Southwest Nova Scotia

Atlantic Canadian fisheries policy exhibits a tension between competing objectives of economic efficiency, and of well-being and equity within coastal communities and small-scale fisheries. The struggle between different actors over these objectives has generated distinct forms of neoliberalism in different regions and fishing fleets. In the lobster fishery, the right to fish has been concentrated since limited-entry licensing policy was introduced in the 1980s. This paper examines actors and events at two scales, including Lobster Fishing Area (LFA) 34 Advisory Committee meetings involving fishermen, representatives of Fisheries and Oceans Canada (DFO), and other stakeholders, and broader scale strategies of the Canadian Independent Fish Harvesters Federation (CIFHF). A Foucauldian perspective aids in understanding how fisheries governance is the product of struggles between the power and agency of individual fishermen, fishing organizations, processing companies, the DFO, the Minister of Fisheries and the courts. While many theorists view fisheries through the lens of the “tragedy of the commons”, alternative tragedies are developing in Atlantic Canadian fisheries. These include rising levels of debt, reduced earnings, vulnerability to financial volatility, loss of fishing rights within communities, and too much processor control.     

An indicator-based adaptive management framework and its development for data-limited fisheries in Belize

Decisions regarding the selection and implementation of management strategies that constrain fishing pressure can be among the most difficult choices that fisheries managers and stakeholders must make. These types of decisions often need to be confronted in a data-limited context, where few if any management measures are currently in place or fisheries are managed independent of adequate scientific advice. This situation can sometimes create a high risk of overfishing and potential loss of economic and social benefits. To address this situation, simple model-free indicator-based frameworks have the potential to be effective decision-making platforms for fisheries where quantitative estimates of biomass and fishing mortality based reference points are lacking. In this paper, a multi-indicator framework is developed that enables decision-makers to proceed with management decisions in data-limited situations. Model-free indicators are calculated using trends in observed data, rather than stock assessment derived estimates of biomass and fishing mortality. The framework developed is adaptive so that adjustments to catch or effort are recursive and can respond to changing environments, socioeconomic conditions, and fishing practices. Using stakeholder-defined objectives as a foundation, indicators and reference points of fishery performance are chosen that can be evaluated easily by undertaking analyses of available data. Indicators from multiple data streams are used so that uncertainty in one indicator can be hedged through careful interpretation and corroboration of information from alternative indicators. During the adaptive management cycle, managers and stakeholders evaluate each indicator against the associated reference points to determine performance measures, interpret the results using scientific and local knowledge, and adjust fishery management tactics accordingly using pre-defined harvest control rules. The framework facilitates the interpretation of situations in which performance measures suggest divergent stock abundance or productivity levels. A case study is presented on this framework's development for conch and lobster fisheries of Belize.     

Exploring the applicability of biological and socioeconomic tools in developing EAFM plans for data absent areas: Spinner dolphin EAFM for Kalpitiya,Sri Lanka

The ecosystem approach to fisheries management (EAFM) methodology is currently considered the preferred option for long-term sustainability of fisheries and ecosystem services and is widely popularised. Manuals, guidelines and training have been given to many nations, but the actual existence and execution of an EAFM plan is rare. The applicability and relevance of biological and socioeconomic tools to follow EAFM planning guidelines in a data absent area were explored in Kalpitiya, northwest Sri Lanka, where there is a population of spinner dolphins that the local community are especially dependent on through tuna-dolphin association fishing and dolphin-watching tourism. This paper provides background to the design and collection of information leading to the formulation of an EAFM management plan. Scoping and the determination of a fishery management area were completed through stakeholder consultations using a combination of interviewer-administered questionnaires, interviews, meetings, dolphin distribution data and existing management plans. Threats and stakeholder prioritisation were compiled and the final agreed fisheries management area covers a total area of 2445 km² adjacent to the Kalpitiya peninsula. The completed EAFM plan contains 4 goals, 16 actions and 72 sub-actions agreed by stakeholders. It was concluded that both willingness of higher level stakeholders responsible for implementing regulations and working with grass-root level stakeholders are critical in developing a realistic and implementable EAFM plan. This work also highlights how data absence should not remain the bottleneck that hinders moving forward with EAFM approaches.     

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.