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.     

Performance indicators in MPA management: Using questionnaires to analyze stakeholder preferences

Concerns about marine protected area (MPA) ecological and social effectiveness have led to a growing interest in conducting management evaluations. The variety of stakeholder interests and needs calls into question the typical notion of MPA ‘success’ and suggests that managers need a practical set of techniques to measure performance and evaluate trade-offs. This study explores how success can be analyzed from the compilation of differing stakeholder viewpoints. Qualitative data was collected through interviews with stakeholders to explore the state of an Italian MPA, selection of performance indicators to evaluate the MPA, and whether it can be deemed a success according to those indicators. The results show that stakeholder groups hold significantly different preferences for biological, economic and socio-cultural performance indicators in judging MPA performance. The elicitation of stakeholder preferences here is an important first step in understanding the criteria through which stakeholders view MPA management.     

‘Doing the right thing’: How social science can help foster pro-environmental behaviour change in marine protected areas

Managers of marine protected areas (MPAs) are constantly challenged to encourage positive user behaviour to minimise impacts on marine ecosystems while allowing recreational use. Yet, some marine users continue to act in ways that diminish conservation values of the area. Drawing on social psychological theories, this paper presents a case for informed behaviour change strategies to reduce problem behaviours in MPAs and contribute to conservation efforts. Social psychological drivers of behaviour are explained and applied to an MPA context to demonstrate how they can inform strategies for predicting and changing behaviour using persuasive communication. As behavioural and persuasive communication theories are seldom invoked and almost never rigorously applied to MPAs, the review offers new theoretical and practical insights into how they can assist MPA management to target and shift specific behaviours that ultimately support marine park values.     

Stakeholders’ expectations towards a proposed marine protected area: A multi-criteria analysis of MPA performance criteria

In order to enable effective management of marine protected areas (MPAs), desired MPA achievements need to be identified as early as possible for the development of relevant and clear management goals, objectives and conservation targets. As the definition of MPA success is a social construct, the involvement of multiple groups in this process including government agencies, stakeholders, and other interested parties is increasingly advocated. This study investigates diverse groups’ opinions on the performance of a proposed National Marine Conservation Area (NMCA) on the West coast of Canada prior to its establishment. In order to analyse and quantify the importance of MPA performance criteria among multiple stakeholder groups, the Analytical Hierarchy Process (AHP) is applied. Findings reveal that marine stakeholder groups have distinct preferences for future MPA performance. Most differences are obvious between user and non-user groups. The study also finds that respondents’ characteristics other than stakeholder groups affiliations influence expectations towards the proposed MPA including livelihood dependency on the marine environment, amount of time spent in the area, and engagement in fishing activities.     

Is there a win–win scenario for marine nature conservation? A case study of Lyme Bay,England

A statutory two hundred and six square kilometre ‘closed area’ in Lyme Bay, South West England entered into force on the 11 July 2008 to protect the reef substrate and the associated biodiversity from the impacts of trawling and dredging with heavy demersal fishing gear. This case study provides an example of how the ecosystem approach has been incorporated into decision making for marine nature conservation and shows that despite sound ecological knowledge of a marine area, the current reliance on traditional neo-classical economic valuations for marine spatial planning can obscure other issues pertinent to the ecosystem approach. With the Government seeking win–win scenarios for stakeholders in the designation of Marine Conservation Zones under the Marine and Coastal Access Act, experience of marine spatial planning in Lyme Bay has revealed that a win–win must be a long-term goal based on a thorough evaluation of the environmental, social and economic values of marine biodiversity.     

MPA as management tools for small-scale fisheries: The case study of Arrábida Marine Protected Area (Portugal)

Marine protected areas (MPA) have been widely suggested as a tool for both fisheries management and conservation goals. These multiple objectives are hard to achieve simultaneously as sustainable development implies the balance between the specific interests of conservation and economical activities. MPA success, namely for fisheries management, entails the implementation of restrictive measures that in a short-time frame may have negative effects on local fishermen communities. It is extremely important to evaluate their performance and effectiveness aiming at a quasi-optimal management, minimizing potential impacts on the social domain. In this study, a methodology for assessing the effectiveness of MPA as a small-scale fisheries management tool was developed, based on a set of indicators grouped in four dimensions (ecological, economic, social and management and governance). The indicators were scored individually according to an original score scale of five values and a median score was calculated for every dimension. Finally, the median overall score was calculated including the scores of the four dimensions. The scores were attributed for two distinct periods: before and after MPA implementation, in order to evaluate the performance of MPA. This methodology can be applied even with few scientific data available and taking into account experts and stakeholders’ judgements. The Arrábida MPA (Portugal) was used as a case study and it was found that with the implementation of the MPA social and economical aspects were impaired (median scores decreased near one value for the period after MPA implementation), while the other two dimensions showed an improvement trend. Thus, the overall score was the same before and after MPA implementation, an intermediate scale score. Results from the application of this method can give important indications about the state of an MPA and evaluate if the initial goals are being achieved through the implemented measures. The method is of easy communication and can be a useful tool for decision making and fisheries management processes.     

Methods of social assessment in Marine Protected Area planning: Is public participation enough?

Addressing social and economic considerations is crucial to the success of Marine Protected Area (MPA) planning and management. Ineffective social assessment can alienate local communities and undermine the success of existing and future MPAs. It is rare to critique the success of methods used currently to incorporate social and economic considerations into MPA planning. Three Australian MPA planning processes covering three states and incorporating federal and state jurisdictions are reviewed in order to determine how potential social impacts were assessed and considered. These case studies indicate that Social Impact Assessment (SIA) is under-developed in Australian MPA planning. Assessments rely heavily on public participation and economic modelling as surrogates for dedicated SIA and are followed commonly by attitudinal surveys to gauge public opinion on the MPA after its establishment. The emergence of issues around public perception of the value of MPAs indicates the failure of some of these proposals to adequately consider social factors in planning and management. This perception may have potential implications for the long term success of individual MPAs. It may also compromise Australia's ability to meet international commitments for MPA targets to gazette at least 10% of all its marine habitats as MPAs. Indeed, this is demonstrated in two of the three case studies where social and economic arguments against MPAs have been used to delay or block the future expansion of the MPA network.     

Mapping human dimensions in marine spatial planning and management: An example from Narragansett Bay, Rhode Island

The Narragansett Bay in Rhode Island is a complex mosaic of human activities and environmental features and while spatial distributions of physical, chemical, and biological elements are well documented in the Bay, there are limited data on spatial distributions of human activities. In this study, human uses of coastal waters in the upper Narragansett Bay are examined using an approach for characterizing and analyzing fine scale spatial and temporal data on human activities. Shipboard transect surveys of active water activities were conducted in the upper Bay on 50 days during the summer months of 2006–2007. The composition and configuration of different vessel types (recreational motor, recreational sail, row boat, commercial fishing, industrial, service, and official) were analyzed, and the impacts of proposed changes in land use policies and wastewater treatment technologies were investigated. Results indicated that recreational boaters comprised almost two-thirds of the upper Bay's users and used over one-half of the study area. Industrial activity was concentrated near Providence where RI's main port is located, and there was an active commercial fishery in the southern portion of the study area. Conditions like increasing cloud cover, weekend days, and the July 4th holiday were related to increased recreational use, while the closure of an upper Bay beach to swimming was associated with fewer commercial fishing vessels and more official boats, recreational motor boats, and service vessels. Findings indicated that upper Bay waters near land converted from industrial zones to zones where residential housing or marinas are encouraged are likely to see a change in composition of vessels, with fewer industrial and official boats and more recreational motor boats, row boats, and service vessels. Enhanced wastewater treatment technologies and the resulting improvements in water quality are likely to make more waters in the upper Bay available to shellfish harvesting, spreading out existing fishing grounds and potential pressures on the ecosystem and on other users. By characterizing the spatial and temporal heterogeneity of human uses in the marine environment and analyzing how these uses relate to the complex human and natural systems in which they are embedded, this study and others like it can positively contribute to marine spatial planning and management efforts designed to achieve ecological, economic, and social objectives.     

The potential compatibility of offshore wind power and fisheries: An example using bluefin tuna in the Adriatic Sea

Given the increasing competition for marine resources, regulatory strategies that benefit multiple stakeholders are increasingly important. Offshore wind power generating facilities are becoming more common in the marine environment and alter the characteristics of the fisheries in the surrounding area. Floating wind turbines can act as fish aggregating devices (FAD), thereby increasing the catchability for some species. Many marine recreational fisheries are open access without effort restrictions; therefore, control of total harvest is difficult. Creating a limited entry recreational fishery and excluding commercial fishing from the area surrounding offshore wind turbines may aid in controlling total harvest and may benefit several important stakeholder groups: (1) recreational and commercial fishermen in terms of higher recreational catch rates and potentially higher overall yield, (2) fisheries managers in terms of more precise control of recreational fisheries harvest, and (3) owners of offshore wind power facilities in terms of reduced risk of damage to infrastructure due to fishing activity. We discuss the compatibility of wind power facilities and fisheries, conditions conducive to this compatibility, and provide an example from a proposed offshore wind power facility in the Adriatic Sea and its potential to affect the fisheries management there, particularly for bluefin tuna (Thunnus thynnus).     

Fishermen responses on marine protected areas in the Baltic cod fishery

Much of the research that concerns the impacts of management measures in the eastern Baltic cod fishery has focused on fish stock rather than understanding fishermen's attitudes towards regulations. Hence, there is little information available on fishermen's responses although they are the ones whom the regulations affect most profoundly. This study analyses the views of fishermen towards management measures with an emphasis on fishing closures (marine protected areas, MPAs). Swedish log-book data from 1996 to 2005 were used to describe MPA induced fishing effort displacements. Fishermen argued that MPAs have been inefficient in conservation of cod stock. The enlargement of Bornholm MPA in 2005 caused substantial effort displacement towards areas dominated by smaller sized fish. This contributed to the increased discarding of juvenile cod. Enlarged MPAs also intensified competition between different fleet segments and reallocated fishing areas. To reduce fishing mortality, fishermen suggested days-at-sea (effort) regulation and an effective landings control system for all fleets that exploit cod stocks in the Baltic Sea Main Basin. These measures would better motivate fishermen for mutual rule compliance, which is a prerequisite for a sustainable cod fishery.     

Successful local marine conservation requires appropriate educational methods and adequate enforcement

MPAs and stakeholder education are marine conservation cornerstones, but data to assess adherence to regulations and the success of educational methods are missing. Local MPAs have been established to protect inter-tidal mudflats and shore users from bait collection which is a contentious worldwide issue. Video cameras monitored activity and confirmed if collectors adhered to the rules at three UK sites with different MPA systems. An educational approach (a voluntary code leaflet) was also assessed through stakeholder discussion and observation. Fareham Creek and Dell Quay supported a considerable number of collectors with none observed at Pagham Harbour. At Fareham Creek bait dug areas were evident in discrete patches in unprotected and protected areas, but observed collectors mainly used the latter. The failure to exclude collectors is due to the lack of enforcement. At Dell Quay virtually all dug areas were outside protected areas and was confirmed by the camera footage. Success is attributed to regular on-the-ground ‘unofficial’ enforcement by the managing NGO. Of the retailers, 75% had heard of the code and the majority stated they followed it. However, none of the 26 collectors observed followed a key rule (e.g. backfilling holes). Local marine conservation is relatively cheap and can be effective, but only if: management matches the actual pressure; scientific evaluation for all components (including education) is integrated from the beginning; adequate site enforcement is included; education methods are active, two-way and sustained.     

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.     

‘It׳s part of me’; understanding the values,images and principles of coastal users and their influence on the social acceptability of MPAs

Improving the social acceptability or ‘social licence’ of Marine Protected Areas (MPAs) is a key challenge facing countries all around the world. As the world moves slowly towards the establishment of a global network of MPAs, it is increasingly apparent that a greater understanding of social responses to MPAs is required, given they are often met with resistance from local communities. A series of in-depth, semi structured interviews were conducted across coastal users in New South Wales, Australia, including surfers, recreational fishers, professional fishers, spearfishers, walkers, divers, snorkellers, kayakers and other community members. The research identified the values, images and principles at work amongst coastal users to determine the dominant ‘cultural models’ within the community and how these models influenced attitudes towards MPAs. This research indicates that traditional consultation models may not be sufficient to address the full spectrum of community needs, and in fact suggests the need to re-conceive the make -up of ‘the community’ itself. In the context of MPA planning ‘the community’ is not an amalgamation of a range of homogenous stakeholder groups but instead a diverse and complex mix of identities and value systems which are not confined to particular interest groups. Incorporating consideration of the diverse range of values, images and principles found within and across stakeholder groups will require new and innovative approaches to participation and management.     

Management of a marine protected area for sustainability and conflict resolution: Lessons from Loreto Bay National Park (Baja California Sur,Mexico)

The Loreto Bay National Park was established to protect the area's ecosystems from habitat destruction and overexploitation. However, the park has not met two of its primary goals: recovery of commercially valuable fish populations and their sustainable use by stakeholders. Based on evidence from the literature, dialogue with stakeholders, a literature review on using recreational fees for marine protected area (MPA) management, and an economic valuation survey, we provide practical guidelines for addressing factors hindering the park's success. These include: 1) the implementation of management based upon ecosystem science, and rigorous monitoring of park ecosystems, 2) increased communication among stake-holder groups, outreach and education, and 3) a re-organization of the park's administrative structure that would allow for more efficient use of funds. Our results also suggest that the park entrance fee could be raised to support these proposed improvements.     

Social licence in the marine sector: A review of understanding and application

Our global oceans are threatened by climate change, overfishing, pollution and a growing list of other impacts that demonstrate an urgent global need for sustainable ocean management. Whilst marine conservation initiatives and protected ocean spaces have increased over recent years, ocean management still lags behind the terrestrial sectors in incorporating and involving communities in its development. ‘Social licence to operate’ is used broadly across the terrestrial literature, but its understanding and application within the marine has been limited to date. This review sought to collate and synthesise instances of social licence in the marine realm as documented in the literature, aiming to create an understanding that may inform future research and development of social licence. Its results determine that social licence is yet an emergent concept in the marine sector but there may be great potential for its application in the marine context. Social licence has become an important theme for development in marine industry and resource use, particularly towards exploring communication and stakeholder engagement. This paper identifies future themes and areas requiring investigation and application in this domain.     

Why local people do not support conservation: Community perceptions of marine protected area livelihood impacts,governance and management in Thailand

Conservation success is often predicated on local support for conservation which is strongly influenced by perceptions of the impacts that are experienced by local communities and opinions of management and governance. Marine protected areas (MPAs) are effective conservation and fisheries management tools that can also have a broad array of positive and negative social, economic, cultural, and political impacts on local communities. Drawing on results from a mixed-methods study of communities on the Andaman Coast of Thailand, this paper explores perceptions of MPA impacts on community livelihood resources (assets) and outcomes as well as MPA governance and management. The area includes 17 National Marine Parks (NMPs) that are situated near rural communities that are highly dependent on coastal resources. Interview participants perceived NMPs to have limited to negative impacts on fisheries and agricultural livelihoods and negligible benefits for tourism livelihoods. Perceived impacts on livelihoods were felt to result from NMPs undermining access to or lacking support for development of cultural, social, political, financial, natural, human, physical, and political capital assets. Conflicting views emerged on whether NMPs resulted in negative or positive marine or terrestrial conservation outcomes. Perceptions of NMP governance and management processes were generally negative. These results point to some necessary policy improvements and actions to ameliorate: the relationship between the NMP and communities, NMP management and governance processes, and socio-economic and conservation outcomes.     

Financing marine protected areas in Jamaica: An exploratory study

The establishment of marine protected areas (MPA) has been a common government response to increasing fishing, tourism and other human activities that lead to decline in coral and marine resources. MPAs often suffer inadequacy of funds and simply become “paper parks”. This study makes a case for the feasibility of a self-financing mechanism for MPAs by estimating potential surplus benefit that recreational users may gain from MPAs in Jamaica. These same recreational users in turn, might be willing to pay a small portion of that gain toward the management costs. With the help of a travel cost model and the visitors’ willingness to pay (WTP) estimates, we show that the management costs of the park amount to a negligible amount; less than 0.1% of the annual total WTP. Furthermore, using these WTP estimates and the findings from other stakeholders’ surveys (hotels, tour operators, etc.), the paper provides insights on user-supported funding policies, such as taxes and fees, which might sustain the operations of MPAs in Jamaica and the broader Caribbean region.     

A clash of values and approaches: A case study of marine protected area planning in Mozambique

Many developing countries are expanding their network of Marine Protected Areas (MPAs) to meet ambitious marine conservation targets set globally and to develop tourism nationally. This study explores the human dimensions of MPA planning in Mozambique by engaging local resource users in a series of structured discussions about marine resource use, pressures on marine resources, ways to address such pressures, and the potential positive and negative impacts of MPAs on the management of marine resources and livelihoods, from a community perspective. Findings show that the groups and communities interviewed are at best ambivalent towards MPAs while at the same time supporting increased government regulation, including conventional fisheries management measures. The study suggests that without significant community involvement in the choice of marine conservation tools, the drive to establish MPAs to achieve biodiversity conservation and tourism development goals may be counterproductive, at least in terms of poverty alleviation and sustainable resource use. It argues that a wider range of marine conservation approaches and tools needs to be considered in addition to MPAs, taking into consideration local views and institutional capacities.     

Vulnerability of different types of fishers to potential implementation of a management plan in a Marine Protected Area (MPA) in the Maldives

Understanding vulnerability of different types of fishers to the implications of a Marine Protected Area (MPA) is crucial to its long-term sustainability. It helps direct management decisions of the MPA in a way that negative impacts on specific fishers can be mitigated. This study explored the vulnerability within specific groups of fishers, namely, commercial, subsistence and recreational fishers in the context of the largest MPA in the Maldives – the South Ari Atoll Marine Protected Area (SAMPA). SAMPA is subject to a future management plan that is likely to bring changes in how resources can be accessed in the area. In order to explore the vulnerability of the fisher groups, their sensitivity to this change was measured through an exploratory factor analysis and a sensitivity index. It was found that commercial fishers were likely to be the most vulnerable group as the management plan could potentially threaten their livelihood. Subsistence fishers were found to be next, as changes in access to SAMPA will potentially influence how they obtain their dietary protein. Recreational fishers were also found to vulnerable due to the nature of their fishing operation. However, relative to other groups, their vulnerability was likely to be much lower. To ensure strategic measures are designed to alleviate these potential vulnerabilities, this study proposed collaborative stakeholder participation throughout the development process of SAMPA's management plan, and also as a platform to build much needed confidence in MPAs among fishers in the Maldives.     

Evaluating marine protected areas for managing marine resource conflict in Hawaii

Conflict surrounding commercial fisheries is a common phenomenon when diverse stakeholders are involved. Harvesting reef fish for the global ornamental fish trade has provoked conflict since the late 1970s in the State of Hawaii. Two decades later the state of Hawaii established a network of marine protected areas (MPAs) on the west coast of the island of Hawaii (“West Hawaii”) to protect and enhance the fish resources and alleviate conflict between stakeholders, principally between commercial dive tour operators and aquarium fishers. The perceptions held by these stakeholders on West Hawaii and Maui were evaluated to understand how MPAs influenced conflict dimensions, as the former location had a well-established MPA network designed to alleviate conflict, while the latter did not. This was accomplished by analyzing the following questions: (1) perceptions about the effectiveness of MPAs to alleviate conflict and enhance reef fish; (2) perceived group encounters and threats to coral reefs; (3) willingness to encourage fishing; and (4) value orientations toward the aquarium fish trade. The results indicate the MPAs in West Hawaii were moderately effective for alleviating conflict, encounters between stakeholders occurred on both islands, dive operators strongly opposed commercial fishing and perceived aquarium fishing as a serious threat to the coral reef ecosystem, and polarized value orientations toward the aquarium fish trade confirms pervasive social values conflict. The conflict between these groups was also asymmetrical. MPAs are inadequate for resolving long term conflict between groups who hold highly dissimilar value orientations toward the use of marine resources. Future marine spatial planning and MPA setting processes should include stakeholder value and conflict assessments to avoid and manage tensions between competing user groups.