长三角区域水环境府际协同治理影响因素研究

长三角地区水环境治理情势复杂,地方政府是水环境治理的主要力量,地方政府水环境治理能否达成协同受多方面因素影响,而地方政府协同是长三角水环境治理的关键。文章通过设计水环境府际协同治理影响因素分析框架,进行案例分析,同时将根因分析法引入问题研究,用亲和图、鱼骨图、帕累托分析图等工具,探析水环境府际协同治理主要影响因素,并根据因素数量占比进行次序排列。研究发现,合作治理机制、制度设计、社会参与等是影响水环境府际协同治理的重要因素。因此,建议构建合作治理机制、完善协同制度、鼓励企业与社会公众参与治理、法律协同、技术协同。研究结果可丰富环境协同治理的理论研究视角,为地方政府水环境治理实践提供一定参考。     

Development of small-scale fisheries in Yemen: An exploration

Yemen is one of the poorest countries in the world. The development of its fishery sector is increasingly being mentioned as a source of livelihood creation. The aims of this paper are to: (a) provide an overview of the institutional environment in which small-scale fishermen in Yemen operate; (b) investigate the constraints they face; and (c) discuss the potential role that co-operatives could play in such development. Small-scale fisheries in Yemen are increasingly important, yet they struggle with access to infrastructure, markets, and credit. We identify significant differences in the development of the fisheries sector in the two main fishing regions: the Gulf of Aden and the Red Sea. Overall, local capacity within co-operatives needs to be improved and private sector development should be encouraged.     

Pathways of integrated coastal management from national policy to local implementation: Enabling climate change adaptation

Integrated coastal management (ICM) has been developing concomitantly with the realisation of the severity of the potential impacts of climate change. The discourse on climate change and adaptation has also included the awareness that adaptation must take place at all levels of government, particularly local government. Climate change is expected to have significant impacts on the physical, social, environmental and economic environments of coastal cities and towns, and in particular on the poor and vulnerable communities within these cities and towns. The crucial role that local government can play in climate protection and building cities' and communities' resilience to climate change is widely recognised at the global level. This paper explores the legal and policy connexion between ICM, local government and climate change in Mozambique and South Africa, two developing countries in Africa. The state of institutionalisation of coastal management at national through to local government is also examined. The authors contend that the state, character and maturity of the ICM policy domain can create an enabling environment within which local government agencies can prepare for future impacts of climate change. Conversely it can also limit, delay and hinder climate change adaptation. The paper concludes with the identification of some key success factors for assessing the effectiveness of the existing policy and legal frameworks to respond to the challenges of climate change. It also identifies some key principles to be included in future legislative reform to promote ICM, cooperative governance and greater preparedness for climate change at local government level.     

Constraints on community participation in salmon fisheries management in Northwest Russia

Salmon fishing used to be the primary source of income in many rural areas of Arkhangelsk oblast in northwest Russia. People who settled in the area received a name Pomory, from Russian po moriu, meaning by sea, because their subsistence activities became marine fishing and hunting and seafaring. Local fisheries have undergone significant changes as post-Soviet Russia embraced the market economy and the state introduced fishing concessions. The current Russian law only allows fishing for salmon through officially registered recreational or commercial fisheries. Both these options are often either unavailable or unaffordable to rural dwellers, which leaves them with limited or no legal access to their traditional salmon fisheries. There has been a growing concern for protecting communities’ fishing rights among wider society in Arkhangelsk oblast. City activists promoted Pomory identity and appealed to the Russian government to grant Pomory an indigenous status to secure their access to fisheries. Although Pomor activism did not reach most of its proclaimed goals, it has contributed to promoting the image of Arkhangelsk oblast as a homeland to Pomor fishing. This image has played an important part in what Arkhangelsk authorities have called socially-oriented fisheries management. Officials have made good attempts to better accommodate rural communities’ access to fishing resources. Yet, these attempts have failed to include fishermen as active participants in the process. This paper looks at constraints on community participation in fisheries management in Russia. It considers both historical and contemporary reasons for the low participation of local community in fisheries management.     

River fisheries management in Bangladesh: Drawing lessons from Community Based Fisheries Management (CBFM) experiences

River fisheries in Bangladesh is characterized as “open-access” and the history of administrative and legislative measures bear “contradiction and dilemmas” in resource extraction. The 1950 Fisheries act, the proclamation of 1973 that restricted lease to the registered fisher cooperatives and the experimental New Fisheries Management Policy (NFMP) of 1986 could not contribute to devolve into any participatory institution to introduce sustainable fisheries management. Because of the persistent dilemma in government policy, continued increase in fishing pressure and other anthropogenic reasons, the River resources degraded substantially. Over the past ten years, the Department of Fisheries (DOF) in collaboration with NGOs implemented community based fisheries management (CBFM) approaches with the technical assistance from the WorldFish Center. The principal goal of the approaches was to provide access rights to the fishers through organizing poor fishers and the community to introduce sustainable fisheries management in beels, floodplains and River sections. The CBFM experiences suggest that management and institution building process in river management is complex, and require participation of all concerned stakeholders including local government institutions and administration. CBFM-2 river fisheries management developed a broad-based institutional framework that include community and local government along with the direct beneficiaries and resource users. A positive feature of such institutions is its ability to facilitate flow of information among agents, which is a key to maintain solidarity within and across groups. This paper draws lessons from the CBFM experiences in Bangladesh to manage river fisheries resources in Bangladesh.     

Human populations and coastal wetlands: conservation and management in Brazil

This article describes the main factors responsible for the degradation of the coastal areas in Brazil and their impact on coastal population. It also analyses the main policies of the Brazilian government concerning the management of coastal areas, focusing on the shortcomings of the methodologies used. It emphasizes the role of the establishment of marine protected areas, as an important tool for coastal management. Lack of support for coastal management from local communities is a common feature of the proposed approaches. The article also describes local initiatives for coastal management as a positive development for the solution of the ecological and social problems existing in the Brazilian coastal areas.     

Traditional fisherfolk and no-take protected areas: The Peixe Lagoon National Park dilemma

This study challenges the ‘National Park’ as the appropriate management model for the Peixe Lagoon area in southern Brazil through an investigation of local fisherfolk livelihoods and traditional ecological knowledge. We argue that top-down management policies implemented through a non-participatory process, which have resulted in conflict between government officials and fisherfolk, disregarded the fisherfolk’s cultural practices and particular knowledge, thereby violating their rights as traditional people. Multiple suggestions are provided to achieve environmental conservation schemes without compromising the local traditional fishing livelihoods.     

Local permit ownership in Alaska salmon fisheries

Changes in ownership of limited entry permits by “local” residents of the region where a fishery occurs may have significant economic and social implications for fishery-dependent regions. This paper examines changes in local permit ownership in Alaska salmon fisheries, for which a long-term decline in rural local permit ownership is an important policy concern. Theoretically, permit markets allocate permits over time to the individuals who are willing to pay the most for them. Any factors that differentially affect what local and non-local residents are willing to pay for permits may affect the equilibrium share of permits held by local residents. For remote rural fisheries in particular, these may include differences between local and non-local residents with respect to access to and costs of financing permits and boats, costs of travel to the fishery, opportunity costs of participation in the fishery, and many other factors. As a fishery increases in profitability, differences between local and non-local residents in access to financing matter more while differences in costs of travel and opportunity costs matter less in the relative ranking of what local and non-local residents are willing to pay for permits. This tends to increase the share of non-local residents among buyers willing to pay the market price for permits, reducing the equilibrium share of permits held by local residents. This leads to a conflict between two important policy goals: increasing fishery profitability and maintaining rural local permit ownership. Consistent with predictions of this theory, the local share of permit ownership in Alaska salmon fisheries is negatively related to permit prices (an indicator of fishery profitability).     

Canada's Atlantic Coastal Action Program: A community-based approach to collective governance

The Atlantic Coastal Action Program (ACAP) is a community-based coastal management initiative that has been underway on Canada's east coast for the past 6 years. Coalitions of local stakeholders have been assisted by government in taking a lead role for the planning and management activities in 13 coastal ecosystems throughout Atlantic Canada. The program was initiated and originally facilitated by the federal government (Environment Canada) but has come to be led and owned at the local level. The objective is to have all those affecting and/or affected by local decisions involved in this process. In ACAP, the traditional role of government is shared with the local roundtables that are established in each coastal ecosystem. Instead of government departments being the lead agencies that set policy and priorities, the communities assume this function and the government agencies become partners in responding to their identified needs. ACAP is a practical demonstration of the joint management, or collective governance approach to Integrated Coastal Management and offers lessons to governments and coastal communities looking to establish lasting partnership approaches that have the potential to achieve the sustainable development of coastal ecosystems.     

Developing a co-management financing mechanism to enhance the financial sustainability of marine protected areas in Taiwan

Marine Protected Areas (MPAs) are a cost-efficient and management-effective tool. Fishery Resource Conservation Zones (FRCZs) are one type of MPA in Taiwan, and they were designated to ensure the sustainability of fishery resources since 1976; however, government appropriations are the only financing source for FRCZs, leading to manpower and equipment shortages for FRCZ management. This study selected the Touching and Suao FRCZs in Yilan County of Taiwan as cases studies. To assess the feasibility of establishing a sustainable financing mechanism for MPAs, the Contingent Valuation Method (CVM) was applied to examine respondents׳ willingness to pay (WTP) to setup a fund for FRCZ management. The empirical results indicated that approximately 90% of respondents would be willing to donate funding for MPAs, and the WTP per respondent is NT$586.51 (US$19.6). Thus, establishing an MPA fund is a feasible way to operate Taiwanese MPAs through a co-management framework involving the central government, local government, local communities and stakeholders. However, based on our empirical results, a co-management financing mechanism for MPAs should be established to ensure stable and diverse financing sources.     

Understanding El Niño — The importance of Grey Literature in Coastal Ecosystem Research and Management

Access to information about past states of the environment and social systems is fundamental to understand, and cope with, the challenges of climate change and over-exploitation of natural resources at the onset of the 21st century. The loss of (old) data is a major threat to understanding better and mitigating long-term effects of human activities and anthropogenic changes to the environment. Although this is intuitively evident for old and local literature of any kind, even present-day international publishing of papers without the underlying raw data makes access to basic information a crucial issue. Here, we summarise experience resulting from a EU-funded International Science & Technology Cooperation (INCO) project (CENSOR) addressing Coastal Ecosystem Research and Management in the El Niño Southern Oscillation (ENSO) context. We show that indeed “Grey Literature” is still one of the most important sources of knowledge about natural science research and management of natural resource systems in Latin American countries. We argue that public archiving of original data of present-day research and old (Grey) Literature and easy public access are important for appreciating today's global environmental challenges caused by human activities, both past and present.     

Efforts to reduce sea turtle bycatch in the shrimp fishery in Northeastern Brazil through a co-management process

The neritic waters of the state of Sergipe in Northeastern Brazil is adjacent to the main nesting area of the olive ridley sea turtles (Lepidochelys olivacea) in the Western Atlantic Ocean and an important area for shrimp trawl fishery. To address the problem of incidental mortality of sea turtles captured during trawling and reduce the risk of overexploitation of shrimp stocks, Projeto TAMAR/ICMBio, a Brazilian sea turtle conservation program, has adopted two main strategies: (1) the implementation of a marine monitoring program and (2) active participation in local forums. This paper describes the conflicts among stakeholders, the arrangements and established mechanisms of negotiation aimed to protect sea turtles and shrimp grounds, and strategies to reduce conflicts between user groups. The analysis of this co-management process highlights the importance of stakeholder participation in resource management decision-making through a cooperative process, the role assumed by non-governmental organizations as mediators, and the factors that influence this system. The key factors and actions learnt from the current study include clear identification of the conflicts, identification of stakeholders – both local and external, and local leaders, encouragement of actors and leaders to participate, support and strengthening of local groups, legitimization of the discussion forums through involvement with government, formalization of decisions taken through legislation, and monitoring of the management efficacy.     

Fiji’s fisheries: their contribution to development and their future

The industrial fisheries of Fiji have had mixed fortunes. The fresh fish export industry has grown rapidly in importance so that fisheries is now the third most valuable export industry; its positive effect on the economy is mainly in the increase in the purchase of goods and services, such as air freight. The present ‘hands off’ policy by government in the fresh fish export industry should continue until the industry matures. In the longer run, ad valorem royalties should be considered as a mean of capturing resource rents. The government-owned export cannery has been in financial decline, and the maintenance of the social benefits of regional employment generated by the cannery has come at a high cost to government coffers. The future of the cannery, now leased to a private operator, is clouded by the uncertainty of the continuity of concessional access to European markets beyond the year 2000. The main task faced by government is the management of fisheries and fish stocks. The management of the inshore fisheries — vital to the needs of a large proportion of the population — needs additional resources. The capability for management of the industrial fisheries, necessary to maximise long term public benefits, would be enhanced by full cost recovery through a user pays policy. This article is based on a paper presented to the Fiji Update seminar, held at the National Centre for Development Studies, the Australian National University, Canberra, on 19 June 1998. The author wishes to thank Mr Krishna Swamy, Senior Fisheries Officer in the Fiji Fisheries Division, and Mr Grahame Southwick, Managing Director of the Fiji Fish Company Ltd, for their generous provision of information for the preparation of this paper; and Mr Joeli Veitayaki, Coordinator of the Ocean Resources Management Programme, University of the South Pacific, for helpful comments. Any errors or omissions are the author’s responsibility, however.     

Time-zoning for the safe-guarding of capture fisheries: A closed season in Tamil Nadu,India

A closed fishing season is arguably the most important fisheries regulation measure implemented by the government of India in the new millennium. Applied mainly to the inshore trawl fishing fleet, the planners’ intention was a safe-guarding of capture fisheries. This article, which is based on fieldwork in seven harbour locations, considers the socio-economic consequences of the closed fishing season for trawler fishermen in the state of Tamil Nadu. It concludes that the success of the ban is based on cooperation between government and local fisher associations, and on broad agreement as to its necessity. Those who are impacted most by the implementation of the closed fishing season are lower-class workers and traders lacking opportunities for alternative employment.     

Perspectives on effects-based management of New Zealand exclusive economic zone resources

Adoption of effects-based management, environmental effects-based management (EEM) or ‘learn as we go, is essential to open up access to all of New Zealand’s Maritime Exclusive Economic Zone (EEZ) resource base into the future. Utilising knowledge gained from ‘learn as we go’ and combining it with the integration of sectarian agendas and establishment of a central government EEZ agency empowered by an Act of Parliament will ensure future food and energy security is met. To achieve this integration of environmental effects management with security of access and stakeholder buy in is needed. Government hierarchies should not limit integration under EEM, policy should be non-separatist, and regions should be defined using ocean zoning. Future food and energy security can then be thought of in terms of environmental carrying capacity, moving away from regimes overly focussed on regulating for development. Ocean zoning could be used to assign property rights, with all activities subject to EEM regulation and enforcement of adaptive environmental standards through a central government EEZ Ocean Affairs agency. An overarching strategy to provide a framework guiding the development of New Zealand’s EEZ organisational infrastructure and decision making is needed to achieve this.     

Factors affecting local permit ownership in Bristol Bay

Since the first limited entry Bristol Bay drift and set gillnet permits were issued in 1975, many local residents have sold their permits to non-resident fishermen. Declining local permit ownership destabilizes the main economic base of the region. Previous studies have documented the decline of locally owned permits and have proposed social and economic hypotheses that could explain why local permit ownership is declining in limited entry fisheries in Alaska. To stem the outward flow of permits, the Bristol Bay Economic Development Corporation operates a Permit Loan Program to assist Bristol Bay watershed residents in buying permits. Despite its generous benefits, it has not reversed the decline in local permit ownership. This paper examines why residents enter or exit the fishery. Hypotheses on permit retention were tested through interviews with Bristol Bay fishery participants. Interviewees indicate stronger cultural and familial ties than economic factors to fishing. As local permit ownership has declined, these ties are being lost, leading to declining interest in the fishery. Commercial fishing is a competitive and costly enterprise. Successful participants in the fisheries, especially the drift gillnet fishery, are financially savvy with supplemental non-fishing income that outcompete residents by catching most of the fish. The Bristol Bay Economic Development Corporation Permit Loan Program appears unable to stop the local loss of permits. There are no obvious ways to expand local permit ownership and retaining local permits remains a major challenge for the region. However, it is important for local residents to participate in the fishery because it keeps communities economically and socially healthy, gives residents access to their local resources and strengthens their voice in managing their local resources.     

From open access to co-governance and conservation: The case of women shellfish collectors in Galicia (Spain)

Improving governability is an important objective in many fisheries and coastal areas. However, it may be difficult to modify the factors influencing this. Specifically, enhancing the capacity of user groups and civil society to cope with the tasks involved in co-governance situations may constitute a challenge, although the advantages in factors such as legitimacy and adaptability to local situations may reward the efforts. This paper attempts to analyze the process of transformation of on-foot shellfish gathering in Galicia, an activity that has traditionally been developed mainly by women in a regime similar to an open access regime. However, in recent decades this situation has changed, and nowadays many areas where this activity flourishes are in a situation of active co-governance, with a type of license system. Shellfisher organizations plan and control the exploitation with the support of the government, even using seeding techniques to regenerate areas that were previously degraded. Over the last decade, they have avoided overexploitation and have managed the marketing of the shellfish much better than ever before. We emphasize in the article that the role of the administration in this process has been decisive, investing in training and improving the organizations and the social dimension of the activity through different strategies. The empowerment of women has been an essential element in this process, which has also enhanced social valuation of the activity. This case may exemplify the possibilities open for progress in potential co-governing situations.     

Implementing Integrated Coastal Zone Management in a national policy vacuum: Local case studies from Ireland

Integrated Coastal Zone Management (ICZM) is widely advocated at all levels of governance as a means of delivering sustainable development in coastal areas. This paper explores the status and characteristics of various forms of ICZM at the local level given that it is at this level that most ICZM activity currently takes place. In this context, local level ICZM includes agency-led initiatives, local pilot projects and bottom-up approaches. Providing empirical evidence about the relative strengths and weaknesses of these various models for local delivery, this paper presents an overview, critique of and lessons learned from approaches in Ireland, where there is no over-arching national coastal management policy to provide any steer for management. The potential for local government involvement in these approaches is emphasised, particularly in bottom-up and local projects which foster strengthened management capacity within local government with limited resource implications. Whilst the paper highlights difficult jurisdictional issues in the Irish context, the potential for improved coastal management, through continued local government involvement in ICZM networks and local projects, as well as through the implementation of the European Integrated Maritime Policy and Marine Strategy Framework Directive, is outlined.     

The Canada-Newfoundland Atlantic Accord Implementation Act: Transparency of the environmental management of the offshore oil and gas industry

This paper considers the overall outcome of a “public environmental audit” of the government management of the oil and gas offshore industry in eastern Canada. Five requests for data sets were placed using the Access to Information Act; all five requests were denied by the Canada-Newfoundland Labrador Offshore Petroleum Board. This lack of access to environmental monitoring data significantly hinders the ability of independent scientific inquiry and/or public involvement in the environmental assessment process.