Rebuilding EU fish stocks and fisheries,a process under way?

As a signatory to the World Summit on Sustainable Development (WSSD), the European Union (EU) has made a commitment to maintain or restore fish stocks to levels that can produce the maximum sustainable yield (MSY), and where possible not later than 2015. So how has the EU's Common Fisheries Policy (CFP) fared in trying to achieve this objective? The development of the status of 41 commercially exploited fish stocks from the North East Atlantic, North Sea and Baltic Sea (FAO Area 27) was analysed together with the economic performance of the fleets exploiting those stocks. The analyses indicate that the exploitation status for many of the stocks has greatly improved during the last 10 years while the economic performance of the fleets over the same period has been highly variable. The main economic indicators (gross value added (GVA) and operating cash flow (OCF)) have gradually improved at a time when the general economic situation, which has a great influence on the markets, costs and purchase power, has worsened. While recognizing that much remains to be done to achieve the objective of the WSSD, the analyses indicate that actions implemented in the last decade under the CFP have led to an improvement in the status of many commercially important fish stocks and their fleets towards levels that are closer to those producing MSY.     

The hesitant emergence of maximum sustainable yield (MSY) in fisheries policies in Europe

The dismal record of fisheries management worldwide is often blamed on managers' and scientists' bigoted pursuit of the flawed Maximum Sustainable Yield (MSY) objective. This paper aims at clarifying that MSY has never been a key element in the EU Common Fisheries Policy (CFP), and has not been for several decades the basis of scientific advice provided in support of that policy. The recent emergence of MSY in debates about the CFP might be a rhetoric response to international pressure rather than a willing change in policy. The major danger of assigning the notorious failure of the CFP to a wrong culprit, MSY, is to distract research efforts away from investigating the real causes that likely lay in the institutional set-up. Many objections against the reference points associated with MSY, as targets or limits, are well-founded but controversies among experts, when left unbridled, just provide the opportune climate for politicians to delay actions in the direction of reduced fishing impacts on fish stocks and marine ecosystems.     

Rio+20 and the reform of the Common Fisheries Policy in Europe

At the Rio+20 meeting in June 2012, governments of the world committed to rebuilding fish stock sizes by 2015 at least to levels that can produce the maximum sustainable yield (MSY), even if that would require the temporary closure of fisheries. This study explores the outcomes of such action for European stocks. In 2012, only 8 of 48 stocks (17%) were abundant enough to produce MSY and with a business as usual scenario, this number would not increase by 2015. In contrast, if fishing was reduced to levels consistent with rebuilding and if some fisheries were temporarily closed, 50–70% of the examined stocks would be able to reach the Rio+20 target by the end of 2015. In this scenario, after three years with reduced catches, fish supply from European stocks would reach and exceed the levels of 2011 already in 2016. The implications for fish, fishers and fish consumers are discussed.     

Implementing the Marine Strategy Framework Directive: A policy perspective on regulatory,institutional and stakeholder impediments to effective implementation

The implementation of the European Union (EU) Marine Strategy Framework Directive (MSFD) requires EU Member States to draft a program of measures to achieve Good Environmental Status (GES). Central argument of this paper, based on an analysis of the unique, holistic character of the MSFD, is that social and political factors are having a major influence on this MSFD implementation process. More specifically, four potential impediments have been identified that are curtailing the drive towards the effective implementation of the scheme advanced by the Directive. First, scientific uncertainty about aggregated ecological pressure and drivers in relation to the different sectors clouds the definition of national programmes of measures and this in turn may lead to implementation-drift in achieving GES. Second, the scale of the ecosystem is different from the political and socio-economic scales of individual, sectoral decision-making and activities. Third, policy coordination is required on several levels, i.e. at the EU level, within the Regional Sea Conventions, at national level and between these three levels. Finally, the coming together of both stakeholder involvement organized for the MSFD and those of existing, sectoral policy domains makes fair and efficient stakeholder involvement challenging. This paper concludes that more attention should be rendered to establishing appropriate coordination and communication structures, which facilitate greater engagement with the different Directorates-General in the European Commission, the European Council and the Parliament, the Member States, sectoral decision making institutions as well as stakeholder interest groups.     

The sensitivity of long-term yield targets to changes in fishery age-selectivity

Maximum sustainable yield (MSY) has been adopted as the primary management goal by several inter-government fishery organisations, and in the United States it forms the cornerstone of federal fishery management policy. MSY became a strategic goal for the management of Europe's fisheries following the resolution of the World Summit on Sustainable Development in 2002 to restore or maintain fish stocks to MSY levels by 2015. Calculation of MSY requires information on the rate at which biomass increases through growth and reproduction and the rate at which it decreases through natural mortality and fishing. Population-selection, which measures the age-specific rates of fishing mortality, is a key component for the calculation of yield as a function of fishing mortality and MSY, yet selection rarely features in either management advice or sensitivity analyses. Effective management of selection can potentially lead to increases in long-term yield, but before taking action managers need to understand what long-term increases are possible. Using a hypothetical stock, equilibrium yield curves were calculated for three scenarios in which the shape of the population-selection curve varied. The results illustrate the potential extent of variation in MSY and the corresponding fishing mortality required to achieve it (F_MSY) that may result solely due to changes in population selectivity. They show that relatively subtle changes in selection can produce substantial differences in MSY and F_MSY. The results are discussed with specific reference to the development of long-term management targets and the mechanisms by which managers might try to influence population-selection.     

Estimating MSY and MEY in multi-species and multi-fleet fisheries,consequences and limits: an application to the Bay of Biscay mixed fishery

Most worldwide fish stocks are overexploited, and so exploited beyond the Maximum Sustainable Yield (MSY) and the Maximum Economic Yield (MEY). Not exploiting fisheries resources at MSY or MEY leads to the loss of production and rents from the fisheries. A large part of the EU fisheries are managed based on single species stock assessments; however, in reality, most species are caught together with other species and by different fleets. In multi-species and multi-fleet fisheries, single species assessments, and consequently MSY and MEY reference points, are often not valid, and so the catch recommendations. In this paper it is investigated the MSY and MEY estimation in multi-species and multi-fleet fisheries in comparison to single species assessments. Analyses are applied to the Bay of Biscay demersal fishery using the IAM bio-economic model. The impact of exploiting at MSY and MEY on the optimal effort allocation between fleets with different exploitation patterns and economic structures is analyzed. When accounting for the multi-species nature of the fishery, MSY landings are 0.4% to 2.7% lower than the single species simulations estimates. When accounting for the multi-fleet nature of the fishery, MSY landings are 27.2% to 30.2% higher than the single-fleet estimates. When considering the multi-fleet characteristics, MEY landings are 6.6% higher and profits are 66.5% higher than in the single-fleet simulation. Optimal effort at MEY is lower than at MSY, but when accounting for multi-fleet the optimal effort decreases for some fleets while increases for gillnetters. The results also provide an estimation of the profits at MEY (or costs of not being at MEY). Profits can be then up to 10.7 times larger than the current profits (256 million Euros compared to the current 24 million Euros).     

On the environmental effectiveness of the EU Marine Strategy Framework Directive

Marine and coastal ecosystems – and thus the benefits they create for humans – are subject to increasing pressures and competing usages. For this reason, the European Union (EU) adopted the Marine Strategy Framework Directive (MSFD), which is to guide future maritime policy in the EU and aims at achieving or maintaining a good environmental status (GES) of European seas by 2020. To this end, the MSFD requires the development of improvement measures, which have to be assessed inter alia by examining their cost-effectiveness and by carrying out cost-benefit analysis (CBA) before their implementation. This paper investigates the applicability of environmental CBA in the marine context. It identifies and discusses problems that could hamper the environmental effectiveness of the MSFD. For example, the fact that marine ecosystem services are much less tangible than terrestrial ones implies greater challenges for the quantification of benefits for society in a marine context. One finding is that the limitations of environmental valuation methods regarding their ability to capture the whole total economic value of improvement measures are a potential source of problems, as the MSFD allows countries to disregard measures with disproportionately high costs. The trans-boundary nature of the main European seas adds to the complexity of the valuation task, e.g., due to the danger that benefits that occur outside of national territories are neglected. Moreover, the current state of knowledge on the functioning of complex marine ecosystems and the links to socio-economic impacts and human well-being seem insufficient to meet the MSFD requirements.     

EU marine strategy framework directive (MSFD) and marine spatial planning (MSP): Which is the more dominant and practicable contributor to maritime policy in the UK?

This paper is a comparative analysis of the contribution to UK marine governance of two recent EU initiatives: the Marine Strategy Framework Directive (MSFD) and Marine Spatial Planning (MSP). MSFD imposed a duty on Member States to achieve Good Environmental Status (GES) in four regional seas, while MSP required Member States to replace their fragmented, sector-based system of maritime decision making with an integrated approach. This paper explains MSFD and MSP, examines their relationship, and compares their practicability, concluding that MSP is both the more dominant and the more practicable instrument, reflecting the UK's preference for sustainable development over conservationism in marine policy. A recent proposal by the European Commission to make MSP and integrated coastal management a Directive reinforces the UK position.     

The science of European marine reserves: Status,efficacy, and future needs

The ecologically and socio-economically important marine ecosystems of Europe are facing severe threats from a variety of human impacts. To mitigate and potentially reverse some of these impacts, the European Union (EU) has mandated the implementation of the Marine Strategy Framework Directive (MSFD) in order to achieve Good Environmental Status (GES) in EU waters by 2020. The primary initiative for achieving GES is the implementation of coherent networks of marine protected areas (MPAs). Marine reserves are an important type of MPA in which no extraction is allowed, but their usefulness depends upon a number of ecological, management, and political factors. This paper provides a synthesis of the ecological effects of existing European marine reserves and the factors (social and ecological) underlying their effectiveness. Results show that existing European marine reserves foster significant positive increases in key biological variables (density, biomass, body size, and species richness) compared with areas receiving less protection, a pattern mirrored by marine reserves around the globe. For marine reserves to achieve their ecological and social goals, however, they must be designed, managed, and enforced properly. In addition, identifying whether protected areas are ecologically connected as a network, as well as where new MPAs should be established according to the MSFD, requires information on the connectivity of populations across large areas. The adoption of the MSFD demonstrates willingness to achieve the long-term protection of Europe's marine ecosystems, but whether the political will (local, regional, and continent wide) is strong enough to see its mandates through remains to be seen. Although the MSFD does not explicitly require marine reserves, an important step towards the protection of Europe's marine ecosystems is the establishment of marine reserves within wider-use MPAs as connected networks across large spatial scales.     

Designed for failure: A critique of the Common Fisheries Policy of the European Union

The Common Fisheries Policy (CFP) of the European Union has neither lived up to its aim of enhancing the sustainability of fish stocks nor that of improving the economic competitiveness of the fishing industry. This paper discusses the failure of the CFP from a biological, economical, legal and political perspective.     

基于渔业统计数据的南海区渔业资源可捕量评估

科学确定海洋渔业可捕量是开展捕捞限额管理的前提和关键。南海区渔业资源种类繁多,无明显大宗经济鱼种,且产量统计不够完善,使得可捕量的量化评估较为困难。根据渔业产量统计数据,利用一种简化的产量模型对南海区渔业资源总可捕量以及11个重要经济类群的可捕量进行了评估。结果表明,南海区渔业资源最大可持续产量为308.6万t,总可捕量为246.9万~277.8万t。从11个重要经济类群的评估结果来看,这些类群在20世纪90年代后均遭受过不同程度的过度捕捞。目前状态较好,未处于过度捕捞状态的有蓝圆鲹和竹荚鱼、沙丁鱼类、马面鲀类、鲷类、鳓类和鲐类等6个恢复力较高的类群;而其他5个恢复力较低的类群,尤其是海鳗类和石斑鱼类,目前处于过度捕捞状态。     

Assessment of the exploitable biomass of thread herring(Opisthonema spp.) in northwestern Mexico

In recent years, the small pelagic fishery on the Pacific northwest coast of Mexico has significantly increased fishing pressure on thread herring Opisthonema spp. This fishery is regulated using a precautionary approach(acceptable biological catch(ABC) and minimum catch size). However, due to fishing dynamics, fish aggregation habits and increased fishing mortality, periodic biomass assessments are necessary to estimate ABC and assess the resource status. The Catch-MSY approach was used to analyze historical series of thread herring catches off the western Baja California Sur(BCS, 1981–2018) and the Gulf of California(GC, 1972–2018) to estimate exploitable biomass and target reference points in order to obtain catch quotas. According to the results, in GC,the maximum biomass reached in 1972(at the beginning of fishery) and minimum biomass reached in 2015; the estimated exploitable biomass for 2019 was 42.2×10~4 t; and the maximum sustainable yield(MSY) was 15.4×10~4 t.In the western BCS coast, the maximum biomass was reached in 1981(at the beginning of fishery) and minimum biomass was reached in 2017; the estimated exploitable biomass for 2019 was 3.2×10~4 t; and the MSY was 1.2×10~4 t.Both stocks showed a decrease in biomass over the past years and were currently near to point of full exploitation.The results suggest that the use of the Catch-MSY method is suitable to obtain annual biomass estimates, in order to establish an ABC, to know the current state of the resource, and to avoid overcoming the potential recovery of the stocks.     

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.     

The MSY concept in a multi-objective fisheries environment – Lessons from the North Sea

One of the most important goals in current fisheries management is to maintain or restore stocks above levels that can produce the maximum sustainable yield (MSY). However, it may not be feasible to achieve MSY simultaneously for multiple species because of trade-offs that result from interactions between species, mixed fisheries and the multiple objectives of stakeholders. The premise in this study is that MSY is a concept that needs adaptation, not wholesale replacement. The approach chosen to identify trade-offs and stakeholder preferences involved a process of consulting and discussing options with stakeholders as well as scenario modelling with bio-economic and multi-species models. It is difficult to intuitively anticipate the consequences of complex trade-offs and it is also complicated to address them from a political point of view. However, scenario modelling showed that the current approach of treating each stock separately and ignoring trade-offs may result in unacceptable ecosystem, economic or social effects in North Sea fisheries. Setting F_MSY as a management target without any flexibility for compromises may lead to disappointment for some of the stakeholders. To treat F_MSY no longer as a point estimate but rather as a “Pretty Good Yield” within sustainable ranges was seen as a promising way forward to avoid unacceptable outcomes when trying to fish all stocks simultaneously at F_MSY. This study gives insights on how inclusive governance can help to reach consensus in difficult political processes, and how science can be used to make informed decisions inside a multi-dimensional trade-off space.     

Is there a need for a new governance model for regionalised Fisheries Management? Implications for science and advice

Over the years, the breadth and depth of EU marine policy has increased with revisions of the Common Fisheries Policy (CFP) and new legislation like the Marine Strategy Framework Directive (MSFD), Integrated Maritime Policy (IMP) and the Framework for Marine Spatial Planning Directive in Europe (FMSP). Not only do these different policies have different remits and hence scope, they also present a multitude of modes of implementation. Although the CFP and MSFD have many common goals when it comes to conservation and sustainable use of living marine resources, they differ substantially in governance set up and implementation modalities, including the underlying scientific advisory processes and structures. Regional cooperation and coordination is foreseen, but there is no governance model in place to coordinate requests for scientific advice, nor institutions coordinating the activities of advice providers, either across policies or across regions. This results in an increase in uncoordinated requests for scientific advice yet the pool of experts fuelling the advisory system is limited. As a result the European marine scientific advisory system is increasingly under pressure. In this paper the consequences of this problem are analysed and a redesign of the institutional governance setting to accommodate these challenges and make the science and advice system ready for the future is explored.     

Sustainable use of flatfish resources: Addressing the credibility crisis in mixed fisheries management

Many flatfish species are caught in mixed demersal trawl fisheries and managed by Total Allowable Catch (TAC). Despite decades of fisheries management, several major stocks are severely depleted. Using the Common Fisheries Policy (CFP) as an example, the failure of mixed-fisheries management is analysed by focussing on: the management system; the role of science; the role of managers and politicians; the response of fisheries to management. Failure of the CFP management could be ascribed to: incorrect management advice owing to bias in stock assessments; the tendency of politicians to set the TAC well above the recommended level; and non-compliance of the fisheries with the management regulations. We conclude that TAC management, although apparently successful in some single-species fisheries, inevitably leads to unsustainable exploitation of stocks caught in mixed demersal fisheries as it promotes discarding of over-quota catch and misreporting of catches, thereby corrupting the basis of the scientific advice and increasing the risk of stock collapse. This failure in mixed demersal fisheries has resulted in the loss of credibility of both scientists and managers, and has undermined the support of fishermen for management regulations. An approach is developed to convert the TAC system into a system that controls the total allowable effort (TAE). The approach takes account of the differences in catch efficiency between fleets as well as seasonal changes in the distribution of the target species and can also be applied in the recovery plans for rebuilding specific components of the demersal fish community, such as plaice, cod and hake.     

Towards sustainable fisheries subsidies: Entering a new round of reform under the Common Fisheries Policy

On 22 April 2009 the European Commission published its ‘Green Paper on the Reform of the Common Fisheries Policy’. The Green Paper points out a contradiction in policy, noting on one hand that public financial support to the Community's fisheries sector is substantial, but on the other hand such support is often incompatible with other Common Fisheries Policy (CFP) objectives, particularly the need to reduce overcapacities. Providing an analytical framework to better understand the effects of subsidies as well as an overview of existing funding schemes under the CFP, this article aims at answering some of the questions posed by the European Commission within its Green Paper. Answers are based on two ideas: the exploitation of marine capture resources ultimately depends on the level of available fish stocks and that a large share of subsidies fuels the race to fish by inducing investment incentives for the fisheries sector. Policies that have ignored this tend to encourage inefficient and unsustainable fishing as well as the misallocation of public funds. Although support schemes under the CFP have changed in recent years, some problematic support schemes persist. A future reform will have to continue the course taken towards sustainable and efficient approaches to supporting the fisheries industry.