EU marine policy on the move: The tension between fisheries and maritime policy

In the past decade, the European Commission has developed the Marine Strategy Directive and the Maritime Policy. Both policies aim at governing the marine environment; yet the two policies have a differing signature in policy formulation and implementation. From a fisher's perspective these policies present a change in institutional setting; major policy measures no longer descend from the EU Common Fisheries Policy alone, but increasingly are derived from general environmental policy developments. In this paper, the policy arrangement approach is used to analyse the differences between the two maritime policies, and the way in which they can affect fisheries management.     

Small-scale marine fisheries policy in Vietnam

Vietnam's marine fisheries are considered to be small scale and are concentrated in coastal near-shore waters. This has resulted in heavy pressure on near-shore fisheries resources. Near-shore fisheries are considered by fishers and the government to be over-exploited, causing hardship for many coastal communities. This paper reviews and analyzes changes in policy towards small-scale fisheries in Vietnam over the last two decades. The primary issues facing the small-scale fisheries in Vietnam are to restructure the near-shore fisheries and to address over-capacity. Recommended actions include improved fisheries statistics, resources for provincial fisheries staff, and a coordinated and integrated approach involving a mixed strategy of resource management; resource restoration; economic and community development; and new governance arrangements.     

Outside the law? Analyzing policy gaps in addressing fishers’ migration in East Africa

Coastal areas, and their small-scale fisheries, are important targets for both internal and transboundary migration partly because high mobility is an inherent feature of many artisanal fisheries livelihoods. As climatic changes are forecast to occur, environmental changes may trigger increased flows of migrant fishers. Policies that seek to promote development in ways that do not extensively degrade natural resources will thus have to deal with likely increases in flows of people across administrative boundaries. However, to date little attention has been directed at this issue and little is known about how policies related to coastal resources and development address these issues. This paper addresses this knowledge gap by analyzing policies and legal documents related to coastal resource management and development to examine the extent to which they recognize and integrate fishers' migration in their provisions. Migrant well-being and vulnerabilities are also addressed by examining the extent to which existing policies dealing with socio-economic development and environmental management address migrants and their needs. The analysis shows that policies related to governance of marine resources and coastal development lack an acknowledgment of fishers' migration issues and suggests that this signals an important gap in policy. The implications of this are discussed. The paper also highlights the fact that the invisibility of the issue in policy means that institutions developed to deal with coastal management at the community level may not have sufficient support from legal and policy documents, and may not be developed or equipped to handle the possible conflicts and difficult trade-offs that need to be addressed as a result of current and potentially increasing fishers’ mobility.     

Dialectics of nature: The emergence of policy on the management of commercial fisheries in english European Marine Sites

European Marine Sites (EMS), designated under either the Habitats or Birds Directives, protect the biodiversity of the European Union (EU) and contribute to the implementation of the 1992 UN Convention on Biological Diversity [1]. The introduction of this form of marine protected area (MPA), as a consequence of EU conservation directives, introduced new legal obligations in waters long exploited by inshore fishing communities. Although the Habitats and Birds Directive have been in place since 1992 and 1979 respectively (the 1979 Directive updated in 2009), it has not been until more recently (2014) that ongoing inshore fisheries activities in England, which predate designation of sites, have been systematically assessed and managed, for their impact in protected sites. In practice it was assumed by many MPA practitioners that at the time of designation of EMS, ongoing activities would be compatible with the conservation objectives of these sites. This paper illustrates the introduction of a general and systematic “revised approach” to managing fisheries in all English EMSs, and how this represented a change in government policy which can be traced directly to a legal campaign between 2008 and 2012 by two UK environmental Non-Governmental Organisations (eNGOs). The paper elucidates this iterative marine policy process analysing the dialogue between government bodies and eNGOs and show how the resulting interpretation of conservation law, has sought to resolve the tensions between the precautionary approach as emphasised by the eNGOs and the Government's desire for proportionality of response.     

The use of a consequential perspective to upgrade the utility of Life Cycle Assessment for fishery managers and policy makers

Attributional LCA, which monitors specific production systems in steady state conditions, is increasingly used in fisheries to assess the environmental profile of fleets and seafood supply chains. However, this approach is not pertinent to assess the environmental consequences of (large scale) policies. In contrast, consequential LCA (CLCA) has been successfully implemented in other sectors to assess the expected changes in environmental impacts of a given production system and other (marginal) production systems that may be affected in response to changes driven by policy or strategic decisions. CLCA commonly combines LCA with economic models to simulate the interactions occurring between the analysed systems. However, the use of these models may not be the most appropriate approach to follow for fisheries. Hence, it seems feasible that CLCA should be combined with stock prediction tools rather than with economic models, to determine how changes in stock sizes and quota restrictions may cause variations in the environmental impact of fishing fleets.     

The changing environment of fisheries policy in Europe

This paper presents how environmental concerns emanating outside the Common Fisheries Policy (CFP) are increasingly setting the stage for EU fisheries management. This is illustrated via what is termed the exogenous entrance of environmental concerns through the implementation of directives in EU policy. More endogenous entrance of environmental concerns occurs via stakeholder participation in Regional Advisory Councils (RACs) as well as market mechanisms, such as ecolabelling and traceability. This study discusses how these latter channels of environmental concern may have become a more potent and efficient way of reaching environmental goals, outside of the primacy of the CFP.     

Distribution of the burden of fisheries regulations in Europe: The north/south divide

The Common Fisheries Policy (CFP) is a priority area of the European Union's Better Regulation agenda. Understanding the spatial variation in the application of the policy and the reasons behind these differences would provide insights into policy making in different socioeconomic and cultural settings that will assist in better regulation. The CFP aqcuis (the body of European Union law accumulated thus far) was analysed by creating a database composed of pre-defined elements from each obligation. Distinct differences are apparent in the ‘burden’ imposed by regulations in the Northern and Southern waters. However, a combination of a timeline of fish landings and the accumulation of the CFP regulations shows that despite the increase in the number of regulations this has not led to the anticipated reduction in landings. Historical, biological and geopolitical differences between the two major marine regions of the EU are discussed in terms of the impact they have had on the formation of the different fisheries management models in the different regions. Finally, the elements forming these models are discussed in terms of successes and failures in the context of the 2012 CFP reform.     

Small versus large-scale,multi-fleet fisheries: The case for economic,social and environmental access criteria in European fisheries

Overfishing is a major problem in global fisheries, plaguing 32% of stocks around the world and a massive 72% in the EU. Despite this, access to public fish resources in the EU and its member states are granted without any social or environmental conditions. Without these, the process of allocating quotas – essentially determining the future health of marine resources and the fishing industry – is blind to virtually all of the impacts of fisheries. Here, the United Kingdom's North Sea cod fishery is studied, comparing the social, environmental and economic impacts of trawlers and gillnets, the two major fishing gears targeting cod in this area. Comparisons are also made on a vessel-length basis to address recent debate concerning the benefits of small-scale fisheries. The results show that, for each tonne of cod landed in these fisheries, all trawlers have impacts that are more costly than the value of their landings. There are also vessel length-specific differences, with the largest trawlers the most destructive (−£1992/tonne and −£2.50/fish). Gillnets, on the other hand, generate positive value to society (+£865/tonne and +£2.16/fish). Despite these impacts, gillnets land only 1% as much cod as trawlers do. The results support the policy implementation of access criteria into the reform of the Common Fisheries Policy, to ensure fishermen generate positive outcomes for society and to provide incentives that align fishermen's interests with conservation objectives.     

The EU landing obligation and European small-scale fisheries: What are the odds for success?

A landing obligation was formally implemented in the European Union (EU) for the first time, as part of the recent reform of the EU Common Fisheries Policy (CFP). Given the reasonable success of the landing obligation in some countries such as the Faroe Islands, Iceland and Norway, this policy is seen as a viable approach to tackle the long-recognized discarding problem in EU waters. However, there has been some debate on whether there is sufficient evidence to support the feasibility of such a measure in the EU-CFP. The EU landing obligation will implicitly include all small-scale fisheries (SSF) provided the species captured are subject to catch limits or minimum sizes (in the case of the Mediterranean). SSF were included irrespective of the fact that the discarding problem in the EU has been historically associated with medium- to large-scale fleets (in particular largely mixed species trawl fisheries). Additionally, past experiences with a discard ban policy are still limited to specific countries and/or specific fisheries. This paper examined the appropriateness and feasibility of the recently implemented EU landing obligation in SSF. The effects in the long-term are unpredictable, but available evidence suggests that in the short to medium-term a landing obligation is likely to bring more negative social, economic and ecological impacts than benefits.     

An historical account of Brazilian public policy on fisheries subsidies

This paper presents a historical account of Brazilian public policy on fisheries subsidies, and a discussion of problems and limitations resulting from such policy. From the 1960s to the mid-1980s, public policies led to a great increase in fisheries catch without appropriate consideration for the long-term sustainability of the resources, resulting in declining catches over the years. The goals of current Brazilian public policy on fisheries will not help in reducing overexploitation. This is because these policies are too optimistic about the abundance of fish in Brazil's EEZ, and are not accompanied by a fisheries management plan that is likely to work.     

Review of participatory fisheries management arrangements in the European Union

Promoting and attaining sustainable use of resources through community participation is a central tenet of the European Union's (EU) 2013 Reform of the Common Fisheries Policy. A systematic review approach was used to identify participatory fisheries management arrangements within the EU. Following this, the participatory arrangements were categorized based on the nature of the decision-making arrangement, influence and empowerment of the fishing industry. The study identified 40 management arrangements distributed through 8 member states, with a variety of fisheries and institutional settings for participation in fisheries management in the EU. The majority of the partnerships identified are “Functional participation”, i.e., the participatory arrangement is based in pre-determined goals encouraged by higher decision-making levels in order to increase efficiency of management decisions. Interactive partnership was the highest level of participation identified in the systematic review, and is usually more conducive with local arrangements in coastal and small-scale fisheries targeting low mobility species.     

Fishing for the future: An overview of challenges and opportunities

This paper surveys the current state and major trends in global fisheries; the environmental and social dimensions of fisheries; and explains how the international community has tried to meet the policy challenges associated with oceans and fisheries. The ocean and the freshwater ecosystems of the world make significant contributions to people's well-being via the many vital social and environmental services they provide (for example, food and nutrition, employment and incomes, carbon cycling and sequestration). The impact that the increase in fishing since the 1950s has had on wild fish stocks, and the significant increase in aquaculture production in the 20th century, have resulted in severe environmental impacts. This has significant effects on marine ecosystems and the health of oceans. The erosion of the resource undermines communities' long-term interests, including food security, employment, and income. Attempts by the global community to address challenges of sustainable production by improving the governance and management of fisheries resources range from national management of fisheries resources, to regional fisheries management organisations (RFMOs) for international fisheries stocks. These attempts have not always successfully met the challenge of balancing current and future use of fisheries.     

From ad hoc towards the institutionalisation: An assessment of Malaysia's policy evolution on Antarctica and the Southern Ocean

Malaysia's policy on Antarctica and the Southern Ocean (A&SO) in the last three decades has evolved from being focused on diplomatic engagement to pioneering science in cooperation with the international community and strengthening science diplomacy by becoming a member of the international governance of Antarctic. Through process-oriented evaluation, the aim of this study is to map out the development of Malaysia's policy on the Antarctic region (from 1982 to 2016) and consequently, identify the current capacities and future needs to strengthen its involvement. This study reveals that Malaysia's policy on A&SO has strong integration in foreign affairs, science and technology (S&T), and the environment, and the involvements are parallel with the national development plan. To move forward, Malaysia is currently establishing a suitable governance structure and a long-term management plan to ensure a long-term political commitment, sustain investment of resources and strengthen the dynamic participation of stakeholders. This study advances the scholarly understanding of the political processes and challenges to Malaysia's Antarctic policy development, in its journey towards institutionalisation which will create distinctive and valuable positions for Malaysia to contribute to current debates on the future of the Antarctic region. In the context of ad-hoc decision on certain policy, this case study will contribute relevant information about the development process, issues and challenges on policy through ad-hoc implementation.     

The conservation of seals in Irish waters: How research informs policy

Ireland's waters represent a valuable resource encompassing productive fishing grounds and important oil and gas reserves. As a species rich marine environment, Ireland's waters are also an important habitat for many species of marine mammal. Specifically, grey seals (Halichoerus grypus) and harbour seals (Phoca vitulina) are widespread in Irish coastal waters and at least 24 species of cetacean have been reported at sea. The coastal zone represents critical habitat for many of these species, in particular seals that use both terrestrial and aquatic coastal habitat and are vulnerable to habitat degradation. Increasing exploitation of marine resources has increased their exposure to a range of anthropogenic effects including pollution and habitat loss. As top predators seals interact with commercial fisheries both directly and indirectly for resources and conflicts arise. The relatively recent move towards ‘greener’ resource exploitation such as marine renewable energy does not come without negative consequences for marine mammals including seals, which are afforded protection under national and international conservation legislation, highlighting the difficulties faced by resource managers. The sustainable exploitation of resources whilst conserving biodiversity is a challenging task and effective management implementation depends on appropriate policy informed by reliable scientific data. This paper outlines the conservation needs of seals in Irish waters, reviews our current knowledge of these species in Irish water, provides a critical analysis of the existing legislative framework and describes how research outputs can inform present and future policy decisions.     

Women and fisheries: Contribution to food security and local economies

The substantial role of women in fisheries is overlooked in management and policy. Fortunately, it is gaining recognition despite a lack of quantitative data describing the scale of participation and contribution. This work summarizes existing knowledge on women's participation in marine fisheries globally, and estimates their contribution in the Pacific. While women's role varies between geographic regions, in the Pacific, women account for 56% of annual small-scale catches, and resulting in an economic impact of 363 million USD (total revenue: 110 million USD). Recognizing and quantifying the role of women in fisheries has profound implications for management, poverty alleviation and development policy.     

Liberal Intergovernmentalism,Historical Institutionalism,and British and German perceptions of the EU's Common Fisheries Policy

The aim of this paper is to determine whether British and German sea fisheries policies have been shaped by domestic factors or by European Union (EU) institutions. To achieve this aim, British and German perceptions of the EU's Common Fisheries Policy (CFP) were compared using two alternative theories of EU integration: Moravscik's Liberal Intergovernmentalism and Pierson's Historical Institutionalism. The perceptions of three sets of respondents—fisheries scientists, fishers, and politicians—were investigated in each country to determine whether they saw the CFP as a means of attaining their own nation's domestic fisheries agenda (as Liberal Intergovernmentalism would argue), or as an institutional champion of European fisheries as a whole (as might be predicted by Historical Institutionalism). The article concludes that although there were elements of both theories evident in each country's perceptions, British perceptions were more strongly indicative of Historical Institutionalism than Liberal Intergovernmentalism, and German perceptions were more strongly indicative of Liberal Intergovernmentalism than Historical Institutionalism. This difference is exemplified in Britain's euroscepticism (which sees EU institutions as obstacles to British fisheries’ interests), and Germany's environmentalism (which sees EU institutions as synchronising with Germany's national priorities).     

The context of policy design for existing community-based fisheries management systems in the Pacific Islands

Community-based fisheries management is being widely promoted as an alternative to centralized systems based on the familiar bioeconomic models that have manifestly failed to prevent a near catastrophic overexploitation of fish stocks worldwide. The Pacific Island Region probably contains the world’s greatest concentration of still-functioning traditional community-based systems for managing coastal-marine fisheries and other resources.It has been frequently asserted that many such traditional systems provide both a firm foundation for future coastal fisheries management in the Pacific Islands Region, as well as a conceptual framework for managing fisheries elsewhere. Although now seemingly self-evident to fisheries development “experts”, such assertions remain largely unverified.Whereas it is a relatively straightforward task to distil basic “design principles” from a sample of systems, it is far more complex to analyze the multi-sectoral national environment in which they function, especially when their history is taken into account. In other words, it is far less widely appreciated that many contemporary community-based fisheries management systems are the end products of a long process of change and adaptation to external pressures and constraints.In this article I address some of the broader contextual issues that should be appreciated in policymaking with respect to a potential modern role for traditional management systems in general, and in the analysis of a future role for any given system. First, the principal external factors that have caused change in systems are described and exemplified. The recognition of the potential role of existing community-based fisheries systems, and attempts to act on it, is summarized for some Pacific Island nations, with a focus on the complex problem of reconciling customary and statutory legal systems. In the final section I examine three principal national policy alternatives regarding the potential role of existing local fisheries management systems, together with three main criteria for determining whether or not a system can be adapted to fulfill modern requirements.     

Incentivising selective fishing under a policy to ban discards; lessons from European and global fisheries

The reduction of discards in European fisheries has been identified as a specific objective of the reform of the EU Common Fisheries Policy. To reduce the uncertainty in catch data and the socially unacceptable waste of resources that results from the disposal of catch at sea, a policy to ban discards has been proposed. Discard bans are currently implemented in Alaska, British Columbia, New Zealand, the Faroe Islands, Norway and Iceland. Experience from these countries highlights that a policy of mandatory landings can result in a reduction in discards, but relies upon a high level of surveillance or economic incentives to encourage fishers to land more of their catch. Discard bans will also not result in long term benefits to stocks unless total removals are reduced, through the avoidance of undersized, non-commercial or over quota catch. Experience shows that additional management measures are required to incentivise such a move towards more selective fishing. Success has resulted from the use of area closures and bycatch limits, with potential applications in EU fisheries. However, selective fishing will not be a panacea for the current state of European fisheries; discard bans and accompanying measures must be embedded in a wider management system that constrains fishing mortality to reasonable levels before sustainable exploitation can occur.     

Opportunities and barriers for industry-led fisheries research

Collaborative research initiatives between New Zealand's fisheries management agencies and commercial fisher organisations are commonplace. This can be attributed to a combination of fisheries management institutions and processes that on the one hand create incentives for commercial fishers to take increasing responsibility for fisheries research and on the other hand provide for governance structures that ensure the transparency and integrity of industry-led research. Nevertheless the full potential of collaborative research initiatives has yet to be realised. Collaborative research has been an indirect outcome of New Zealand's rights-based fisheries management framework and until recently there has been little effort to explicitly provide for it in Government policy. The financial and management capacity of commercial fisher organisations must also be developed if collaborative research is to become a core function of these organisations. High expectations have been created for collaborative research and failure to address key issues will undermine the potential and hence legitimacy of collaborative research involving commercial fishers and other fisheries stakeholders.     

Identifying fisheries dependent communities in EU coastal areas

The importance of local communities relying on fisheries is constantly emphasised in the European Union's Common Fishery Policy. Previous studies have analysed fishery employment for the entire EU based on statistical figures aggregated by administrative units at the regional or provincial level. This paper adopts a geographical approach to identify EU coastal communities relying on fisheries using accessibility analysis, principles at the basis of gravity models and disaggregated population and employment statistics. The dependency on fisheries is calculated comparing estimated employment from fisheries at each port with general employment in the areas of accessibility surrounding the port. By considering spatially disaggregated statistics the importance of fishing activities for specific local communities emerges more clearly in respect of previous studies. The map of fisheries dependent coastal communities identifies in 2010, 388 communities, out of 1697, with dependency ratios above 1%. Around 54% of total fishery employment is estimated in these areas. In terms of policy support, identifying and mapping these local fishing coastal communities is of key importance considering the strong priority assigned by the new European Union's Common Fishery Policy to fishery management at the regional level.