The tower of Babel: Different perceptions and controversies on change and status of North Sea fish stocks in multi-stakeholder settings

Fishermen, scientists, national policy makers, and staff of environmental NGOs (ENGOs) hold different perceptions about temporal patterns in fish stocks. Perception differences are problematic in multi-stakeholder settings, because they elicit controversies and unbalanced disputes. These hinder effective participation, a prerequisite for ‘good governance’ and effective management of sustainable fisheries. This study shows that perceptions of change (‘does the stock increase or decrease?’) and of current status of a fish stock (‘is it doing well or not?’) are influenced by the capturing and processing of information, rather than by interests alone. We focused on the Dutch North Sea fishery on plaice and sole and examined (1) availability and accessibility of information on temporal patterns of these stocks and (2) perception differences between all parties. A first explanation for these differences is the use of different parameters as a measure for stock size. Fishermen focus on catch rates or catch-per-unit-effort (relative stock size), whereas scientists, policy makers, and ENGO-staff mainly use scientific assessments of spawning stock biomass (absolute stock size). Between-group perception differences are further explained by spatial aggregation levels of information, lengths of time series evaluated, and by modes of comparison to qualify the current status of fish stocks. Awareness of information differences and the development of shared information use and processing may release some of the tensions in multi-stakeholder settings debating fisheries management. However, comprehension problems amongst all parties on how spawning stock biomass is reconstructed and how it relates to catch rates in the fishery may pose an enduring barrier.     

Marine ecosystem management: Fish abundance and size under exploitation

This study is targeted on policy makers and environmental scientists to illustrate the typical historical scale of depletion of our fish stocks, and what current and emerging legislation might mean for fisheries management and the metrics of fish stocks. The population demography of the Bristol Channel sole is described since 1820. Their decline in abundance, and change in length compositions, are modelled. By 2000, the mature stock had been depleted to less than 5% of its original size, and larger sole were rarely caught. The implications of maximum sustainable yield targets, and of good environmental status, are examined.     

The perceptions of local fishermen towards a hotel managed marine reserve in Vietnam

Marine Protected Areas (MPAs) often fail to meet ecological, social or economic objectives due to lack of effective management by government institutions. Partly in response to this failure, a number of marine reserves managed by the private sector, Hotel Managed Marine Reserves (HMMRs), have recently been established. In this study, we investigate changes to the social and economic conditions faced by local fishermen, following the establishment of two small reserves adjacent to a hotel in Vietnam, as well as their perceptions of the reserves' ability to produce spillover. The findings are used to gauge management performance and effectiveness of the HMMRs. Two surveys with different survey designs, targeting fishermen with different fishing techniques, produced conflicting results. Fishermen mainly dependent on beach seining mostly opposed the HMMRs and the prospect of more protected areas being established. Fishermen using other fishing techniques were generally in favor of the HMMRs, welcoming more protection and confirming spillover of fish, including large food fishes.     

Dominant discourses,among fishers and middlemen,of the factors affecting coral reef fish distributions in Solomon Islands

Understanding resource stakeholders' perceptions of resource condition and management is vital to the formulation of efficacious management policy to sustain natural systems because agreement among stakeholders is likely to result in more effective outcomes. Understanding perceptions is particularly important in the context of coral reefs because threats are often diverse and management options are numerous, and therefore perceptions are likely to be diverse. This study identified the dominant discourses of reef fish decline, and increase, among 119 fishers and fish traders (herein middlemen) in Solomon Islands, and compared these discourses to current scientific knowledge. Discourses were then explored for dominant themes that might improve understanding of resource user perceptions. The findings suggest that certain fisher and middlemen discourses align with scientific understanding of the causal links between human activity and fish stock declines, and that many of the elicited management strategies are aligned with current scientific recommendations. A theme that emerged across the fisher and middlemen discourses of fish decline was a dichotomy in perception between fishing for economic affluence and fishing for subsistence and economic survival. A theme that emerged across discourses of fish increase was a dichotomy between support for command-and-control approaches and support for community-based approaches to management. Differences between some fisher and middlemen discourses were explained by the location in which interviews were conducted suggesting consensual perceptions achieved through local knowledge networks. Similarity between scientific understanding and local perceptions suggests that local resource users are aware of, and might support, fishery management strategies based on scientific evidence. Such strategies must consider factors such as location because resource user perceptions differ between locations and because many threats to the fishery and preferred management strategies are likely to be context specific.     

Community based fishery management within the Menai Bay conservation area: A survey of the resource user

Management strategies are challenging to implement in Zanzibar's fisheries because the local people depend upon these resources for basic subsistence. This difficulty epitomizes the vital need for sustainable management: the more people need a fishery, the harder it is to limit fishing to allow regeneration. Comparing fisheries management strategies in two coastal villages in Unguja, the largest island of Zanzibar, Tanzania, this paper confirms the results of existing scholarship that communitybased strategies provide the most promising solutions to this challenge. Interviews with officials from the Department of Fisheries and Marine Resources, Village Fishermen Committees, and 51 fishermen in the villages of Kizimkazi Dimbani and Jambiani reveal the efficacy of strategies where local fishermen are centrally involved. The fishermen interviews reveal ignorance of existing fishing regulations and a lack of enforcement while fishermen at both sites noted that many illegal methods of fishing are still in use and expressed concern that such methods damage fish stocks. The Village Fishermen Committees, a recently implemented community-based initiative, are well attended by fishermen, and constitute a management strength that this paper concludes should be the foundation of future policy. To be successful, these committees need additional educational and financial resources.     

A knowledge base for management of the capital-intensive fishery for small pelagic fish off South Africa

As a contribution to South Africa's move towards an ecosystem approach to fisheries management, this study explores the existence of common perceptions about South Africa's pelagic fishery between resource users and scientists. It represents a collaborative research effort of social and natural scientists. A brief overview is given of the southern Benguela upwelling ecosystem and small pelagic fish resources, the fishery, and management of the fishery. Stakeholder knowledge and views were determined by conducting open-ended qualitative local knowledge interviews. Candidate indicators to address five major issues raised in the interviews were selected: length-at-50% maturity, total mortality, exploitation rate, proportion of bycatch, mean length of catch, and centre of gravity of catches. The indicator approach is shown to be a useful tool to manage the South African small pelagic fishery, and can be made compatible with existing management approaches. The foundation of a good adaptive fisheries management system is a data collection system that enables multi-disciplinary analysis and provides a basis on which decisions can be made.     

National comprehensive approaches for rebuilding fisheries in South Korea

Korea's coastal and offshore fisheries have experienced reduction in their catch in the early 2000. The amount of catch from coastal and offshore fisheries dropped from 1.7 million tons in 1986 to 1 million tons in 2004. To address such catch reduction, fish stock enhancement programs have been constantly developed and implemented. However, as fish stocks have been estimated to decrease since 2000 in spite of various management measures, the Korean Government genuinely acknowledges the necessity to enhance fisheries productivity through the recovery of depleted fish stocks. Based on such acknowledgement, a fish stock rebuilding plan (FSRP) combined with conventional fish stock enhancement programs was established in 2005. For stocks which have shown drastic decrease, a FSRP was set up and promoted. So far, 10 FSRPs have been established and operated, and plan is being made to expand them to 20 species by 2012. The result of pilot projects shows that stocks have been increasing after the introduction of FSRPs. For instance, the catch per unit effort (CPUE) of sandfish in the East Sea has increased from 0.44 in 2005 to 0.78 in 2011. Consequently, fishing income has increased by 15%. The key lessons learned during the implementation of FSRP are: the causes for the decrease of stock vary and are complicated and it is necessary to adjust and eliminate some conventional policies that could have unforeseen negative impacts on fish stocks. The FSRP-based fisheries management policy in Korea carries great significance, for it has changed the focus of policy from simply maintaining the status quo to stock recovery and it allows relevant stakeholders to get actively involved in the procedures of establishing and promoting the plan, leading to effective implementation of the plan. The current FSRP is operated with species, but if it can be gradually expanded to encompass the whole ecosystem, it will greatly contribute to more effective management and fish stock recovery for all species in offshore and coastal waters surrounding Korea.     

Comparing stakeholder perceptions with empirical outcomes from negotiated rulemaking policies: Is participant satisfaction a proxy for policy success?

Evaluation of natural resource management policies often is made difficult by lack of robust or long-term data on the resource. In the absence of empirical data, natural resource policy evaluation may rely on expert or stakeholder perception of success as a proxy, particularly in the context of policies that depend on multi-stakeholder engagement or negotiated rulemaking. However, few formal evaluations have compared empirical ecological outcomes with stakeholder perception. This study compares stakeholder perceptions of policy outcomes with ecological outcomes from a long-term, ecological dataset as part of the U.S. Marine Mammal Protection Act's Take Reduction Planning process. Structural Equation Models revealed that stakeholder perceptions were significantly and positively related to positive ecological outcomes. Also, perceived success and ecological performance rankings of the Take Reduction Plans were comparable for three of the five plans examined. This analysis suggests that for this particular policy instrument, stakeholder perception aligns well with ecological outcomes, and this positive relationship is likely the result of a commitment and support for stakeholder education and engagement. However, even within a single policy analysis, there was variability suggesting that the relationship between stakeholder perceptions and policy outcomes must continue to be evaluated. This study suggests that stakeholder perception can be an accurate reflection of ecological outcomes, but not necessarily a predictor of them.     

Flexible management of fishing rights and a sustainable fisheries industry in Europe

Although overexploitation of commercial fish stocks in European waters has been in the public debate now for more than 20 years, the European Union has so far failed to implement sustainable fisheries management. Millions in subsidies paid to the fishing industry have led to significant excess capacity in the fishing fleet. Various feeble attempts to stop overexploitation of marine resources have failed. The cause is that fishing policy is highly dominated by short-term socioeconomic interests. There is an urgent need for a new fisheries management system in Europe that supports reductions in the fishing fleet, increases responsibility among fishers and guarantees long-term conservation of natural marine resources.Transferable rights to fish have proved a reliable and effective means of creating incentives to conserve marine resources. By strengthening individual fishing rights under flexible quota management systems, the EU Member States could, within the Common Fisheries Policy, make a significant contribution to conserving fish stocks, to reducing excess capacity and to raising the profitability of the fisheries industry. A closer look at existing reservations against a flexible management system shows most of the objections to be overstated or capable of resolution.     

Tuna longline catch rates in the Indian Ocean: Did industrial fishing result in a 90% rapid decline in the abundance of large predatory species?

Myers and Worm claim that their analyses of catch rates following the commencement of industrial longline fishing for tuna and billfishes show that these longline fisheries rapidly depleted the abundance of these large oceanic predators by 90% (Myers RA, Worm B. Rapid worldwide depletion of predatory fish communities. Nature 2003;423:280–3). Their analyses were published in a high profile science journal along with an accompanying press release, which then attracted substantial international media focus and public attention. This media focus in turn has been used as a base for advocating major marine policy changes for pelagic tuna fisheries (e.g. a minimum of a 50% reduction in catches and establishment of extensive marine reserves). However, among numerous scientific experts involved in tuna and pelagic fishery research substantial concerns exist that Myers and Worm's analyses provide a misleading picture of the status of large predatory pelagic fishes. These concerns are reviewed using data from the Indian Ocean for illustrative purposes and indicate that the initial longline catches were not responsible for a rapid depletion of the main tuna and billfish stocks nor were they threatening the overall sustainability of these stocks. However, the status of a number of theses stocks is of concern as a result of large increases in catches in more recent years. The debate sparked by Myers and Worm's paper should not distract from the critical problem of developing and implementing effective international management policies. In addition to implications for fishery management, the publication, peer-review, scientific response and publicity process associated with the publication of Myers and Worm's paper are discussed. Concerns are raised that if these become standard practices for articles in high profile science journals that this would undermine the trust placed in such journal to provide an accurate and well-balanced representation of the most important new scientific findings and in their role to inform policy decisions based on these findings.     

Bringing stakeholders,scientists, and managers together through an integrated ecosystem assessment process

For decades, the scientific community has conducted essential background research and developed appropriate modeling tools in support of an ecosystem-based approach to natural resource management. Resource managers and the public, however, lack a clear roadmap for working with scientists to move beyond the traditional single-species approach. With current management processes so strongly focused on working in a species-by-species framework, there are entrenched cultural and institutional challenges to shifting those processes toward ecosystem-based management. We propose using the integrated ecosystem assessment process to both develop new management ideas for a particular ecosystem, and to help shift public policy processes and perceptions to embrace ecosystem approaches to management.     

Scientists’ prioritization of global coastal research questions

Complex coastal management challenges often span ecological and political boundaries, and involve competing demands from groups advocating alternative coastal management strategies. As a consequence, policy-makers require scientific evidence from across a range of disciplines. Implementing cross-disciplinary research and facilitating science-policy engagement are, however, a significant challenge in its own right. Seven recent ecologically oriented ‘big question’ exercises identified a variety of research questions potentially important for coastal and marine management. In this research, 592 coastal scientists from 91 different countries completed a survey that ranked those 20 coastally oriented research questions. There was a clear overall ordering of aggregated coastal research priorities but scientists did exhibit heterogeneity regarding priorities. Some prioritized ecological issues while others focused more on issues such as coastal resource use or global environmental change. The differences in opinion were largely disciplinary-based, highlighting the importance of, and challenges in, encouraging scientific collaboration across disciplines to support effective coastal zone management. In addition to the ranking of existing questions, scientists submitted an additional 340 potential priority research questions, thus broadening the participatory nature of the original exercises. New questions regarding coastal processes, contaminants and pollution, and monitoring were prominent. This first synthesis across ‘big question’ exercises should provide valuable insights into the diversity of scientists’ opinions and help policy makers understand potentially conflicting science advice.     

Experiences of coastal management in the Pacific Islands

Integrated coastal management (ICM) is accepted world-wide as a comprehensive, multi-sectoral integrated approach to the planning and management of coastal areas. ICM is particularly suited to the island member countries of the South Pacific Regional Environment Programme (SPREP) because of their size, the interconnectedness of the coast and terrestrial areas and the high degree of association and community involvement with the management of coastal systems. With the exception of the highly migratory pelagic fish stocks, the narrow natural resource base of many Pacific islands make them particularly vulnerable to inappropriate development and mismanagement. Fortunately, the governments of many Pacific Island countries (PIC) have become aware of the benefits of integrated coastal management and are looking at ways of making it an established practice. This paper uses the framework of ICM to illustrate some of the author's experience of coastal management within the South Pacific region. Within the ICM framework, a range of tools and techniques are available to manage coastal problems. The success of any approach depends on the scale and magnitude of the problems to be addressed and the availability of information, institutional support and commitment from all stakeholders. The way in which programmes are conducted and implemented is particularly important. Top down initiatives may work at the regional level but tend to fail at the national and community level unless there are other incentives to support them. On the other hand, bottom up, process driven initiatives have enjoyed more success at the community level. Demand-based approaches have tended to be very successful at all levels, whether they be at the community, country or regional levels, particularly where all of the interested parties can collaborate and contribute to finding solutions to their problems.     

Communicating risk through a DSS: A coastal risk centred empirical analysis

Risk communication has recently evolved from the design of unidirectional (from scientists to the public) information flow toward a more integrative deliberative procedures (involving scientists, policymakers, stakeholders and the general public) aimed at reconciling diverging social constructs of risk. Furthermore, risk communication is seen now as an activity that is transverse to the risk governance process as a whole. Risk communication is therefore part of the preassessment, appraisal, characterization/evaluation and management phases of risk governance. At the same time the development of risk management Decision Support Systems are increasingly geared at facilitating decision making while taking into account and streamlining all the phases of the risk governance process. These recent trends lead to a redefinition of the role of risk communication in the context of the development of DSS.This paper explores these issues by analysing how risk communication can be integrated into THESEUS's DSS. A first step of this analysis consists of applying grounded theory to analyse stakeholders' perception in three of THESEUS's application settings. We then compare this theorization to the grounded theorization of the foundational model of THESEUS's DSS. The result of this comparison points to diverging, yet not incompatible, paradigmatic views on the nature of coastal risks. These divergences are further analysed through semi-structured interviews with key informants involved in the development of the DSS.Building on these results we develop a communication scheme that should allow a progressive convergence of paradigmatic views occurring through the use of the DSS; we are thus proposing that the DSS in itself be a locus where risk communication as a deliberative practice occurs. In order to achieve this we propose that the cognitive pathways followed by DSS users be proactively designed and involves integrative exchanges between designers, users and policy makers.     

Recreational fishing in a time of rapid ocean change

Fishing is an important recreational activity for many Australians, with one in every four people participating every year. There are however many different pressures exerted on Australian fish stocks, including climate-related changes that drive changes in local fish abundances. It is inevitable that recreational fishers will need to adapt to these changes. When resource abundance alters substantially, user adaptation to the new situation is required and policies and incentives may need to be developed to encourage behaviour change. It is important to correctly anticipate fisher's response to these policies and incentives as much as possible. Improved understanding of recreational fisher's likely adaptation decisions and the nature and timing of these decisions can help avoid unintended consequences of management decisions. Based on a survey of recreational fishers in the south-east Australian climate hotspot, we identify 4 relevant dimensions to recreational fisher's behavioural adaptation. There are differences in adaptation timing (early, late, and non-adaptors). Non-adaptors are characterised by greater cultural attachment to fishing and stronger perceptions of the factors that influence abundance change. The fisher's preferred adaptation responses and the timing of the behavioural response differs between decreasing versus increasing fish abundance. Insight into perspectives and expectations on how recreational fishers might adapt to changes is useful to develop a set of behavioural incentives that appeal to different groups but remain efficient and effective in their implementation. Such knowledge can create new pathways to achieve meaningful and targeted adaptation responses for different types of recreational fishers.     

The interaction triangle as a tool for understanding stakeholder interactions in marine ecosystem based management

Expectations about ecosystem based management (EBM) differ due to diverging perspectives about what EBM should be and how it should work. While EBM by its nature requires trade-offs to be made between ecological, economic and social sustainability criteria, the diversity of cross-sectoral perspectives, values, stakes, and the specificity of each individual situation determine the outcome of these trade-offs. The authors strive to raise awareness of the importance of interaction between three stakeholder groups (decision makers, scientists, and other actors) and argue that choosing appropriate degrees of interaction between them in a transparent way can make EBM more effective in terms of the three effectiveness criteria salience, legitimacy, and credibility. This article therefore presents an interaction triangle in which three crucial dimensions of stakeholder interactions are discussed: (A) between decision makers and scientists, who engage in framing to foster salience of scientific input to decision making, (B) between decision makers and other actors, to shape participation processes to foster legitimacy of EBM processes, and (C) between scientists and other actors, who collaborate to foster credibility of knowledge production. Due to the complexity of EBM, there is not one optimal interaction approach; rather, finding the optimal degrees of interaction for each dimension depends on the context in which EBM is implemented, i.e. the EBM objectives, the EBM initiator’s willingness for transparency and interaction, and other context-specific factors, such as resources, trust, and state of knowledge.     

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.     

Stakeholder participation in the management of North East Atlantic pelagic fish stocks: The future role of the Pelagic Regional Advisory Council in a reformed CFP

When the Regional Advisory Councils (RACs) were created during the last reform of the Common Fisheries Policy (CFP) in 2002, it was recognised that in addition to the five geographically orientated stakeholder lead advisory bodies, a separate RAC dedicated exclusively to pelagic fisheries was needed because of it being so distinctly different from other fisheries. Pelagic fishing is different mostly due to the fact that the targeted fish species behave in a unique manner by grouping in schools in mid-water unlike other commercially targeted fishes, which typically reside on or near the ocean floor. For this reason, as well as the fact that they are usually widely distributed, researching and managing this dynamic group of fishes across the borders of many countries requires a unique approach. Fortunately, despite these complexities, policy makers have succeeded to establish a reasonably well functioning management framework, which has lead to the situation that most pelagic fish stocks are harvested biologically sustainable. While a majority of Europe's fish stocks still need rebuilding, and the main aim accordingly is to reduce fishing mortality, the current focus for pelagic fish stocks is to improve the performance of already implemented Long Term Management plans in terms of their biological as well as social and economical objectives. This paper reflects upon experiences of the Pelagic Regional Advisory Council (PRAC) in its role as advisor to the EU institutions. Subsequently, in the context of ideas presented in the European Commission's Green paper, the authors discuss the future of the PRAC and conclude that its main development potential lies not with the current EU's CFP reform, but rather should be sought in a wider international context.     

Navigating a complex policy system—Explaining local divergences in Swedish fish stocking policy

Swedish fish stocking policy constitutes an example of the disparate challenges associated with adaptive management theory and the realization thereof. The vast substantial and institutional uncertainties of the policy subsystem have previously been identified as variables that complicate the realization of adaptive policy making. The aim of this paper is to address and tentatively explain differences in regards to how these uncertainties are handled. What regional variances in Swedish fish stocking policy can be distinguished and how can these variations be explained? The empirical analysis shows that Swedish fish stocking policy consists of a wide array of different regional policies. These regional variations are explained by differences in existing implementation resources, policy beliefs and readings of formal regulations. Policy makers can decrease these divergences in two ways; they can either change formal regulations or influence available implementation resources. Both management approaches might have positive as well as negative effects on the subsystem's adaptability.