Transdisciplinary co-operation for an ecosystem approach to fisheries: A case study from the South African sardine fishery

Integrative approaches that involve natural and social scientists are needed to manage fisheries, but these are difficult to achieve. The process of developing a prototype, knowledge-based, electronic decision support tool for the South African sardine Sardinops sagax fishery provided a platform for fostering collaboration and achieving active participation of many stakeholders. The aim of the decision support tool is to assist managers in evaluating how effectively an ecosystem approach to fisheries (EAF) has been implemented for this fishery. The collaborative process involved a series of meetings during which knowledge was elicited from fisheries scientists, social scientists, resource managers and fishing industry representatives. Conceptualisations of the different stakeholder perspectives were developed in terms of objectives and indicators following the hierarchical tree approach recommended by FAO. This paper describes the collaborative process. Hierarchies of objectives, indicators and data sets for the human dimension of an EAF in the South African sardine fishery are introduced. The value of a transdisciplinary approach towards an EAF in South Africa is discussed.     

Review of indicators in fisheries management – a development perspective

A review of indicators for an ecosystem approach to fisheries management is presented, focusing on multispecies fisheries and limited resources for assessments and implementation, as often is the case in developing countries. Emphasizing the need to link indicators to management objectives, indicators from the literature are grouped into four categories, relating to the immediate fisheries resource base (single-species and multispecies indicators) and the wider ecosystem (habitat structure and ecosystem functioning). The usefulness of these indicators is assessed along three dimensions of acceptability among stakeholders, observability, and relation to fisheries management using a traffic light approach. The top ranking indicators are highlighted as a generally good start for any particular fishery management case. It is, however, argued that, even with similar management objectives, indicators need to be specific to both ecosystems and the institutional set-up if they are to be effective for management, and that indicators may consequently differ considerably between individual management applications.     

Ocean robotics in support of fisheries research and management

South Africa’s small-pelagic fishery is a socio-economically important component of the country’s commercial fisheries sector, second in value only to the demersal trawl fishery. Management of this sector relies on infrequent hydro-acoustic surveys, which provide measures of anchovy Engraulis encrasicolus and sardine Sardinops sagax biomass used in the assessments of stock status and in the development of management plans for the sustainable utilisation of these resources. We demonstrate how technological capabilities in ocean robotics at the Council for Scientific and Industrial Research (CSIR) could augment the current resource-intensive hydro-acoustic ship-based survey programme and create opportunities for expanding its spatial and temporal resolution. We successfully implement and demonstrate an autonomous wave glider, fitted with a hydro-acoustic sensor and compare the data to a collocated ‘traditional’ ship-based acoustics survey. In the future these autonomous systems approaches could be seen as a means to lessen the cost burden of the ship-based survey, while at the same time with the added advantage of continuous collection over much wider spatial and temporal domains. This could enable a more reflexive stock management approach taking into account the seasonal characteristics of the fishery and its ecosystem. Gliders thus have potential to increase dramatically the quantity of information available to fisheries managers, thereby reducing uncertainty and contributing to improved management of valuable fish resources. They are likely to contribute to improved knowledge of the ecology of small pelagic fish species off the coast of South Africa in a changing climate and should potentially also permit the collection of biomass data for other marine resources currently not routinely monitored.     

Efficacy of rights-based management of small pelagic fish within an ecosystems approach to fisheries in South Africa

South Africa's small pelagics fishery is moving towards a management strategy using an ecosystem approach to fisheries (EAF), with rights-based management (RBM) as the key rights allocation system. While EAF strives to balance between, among others, ecological and social-economic objectives, RBM is driving the sector towards economic efficiency. Within EAF itself, there are still underlying mismatches between the two top objectives, ‘human wellbeing’ and ‘ecological wellbeing’, in effect requiring a better balance between these objectives than there is currently. For example, fishers do not believe they should be competing with marine mammals and birds for allocation of the resource, yet this is one of the primary trade-offs that have to be made when setting the annual total allowable catches (TACs) under EAF. A balance between the two objectives could be achieved through acceptable trade-offs between them among all stakeholders within inclusive governance. Implementation of RBM has had both positive and negative effects on the objectives for EAF. Of concern are the negative effects of RBM on human wellbeing. For example, fishers feel that RBM has weakened their bargaining position, thereby reducing their benefits. In addition, RBM has resulted in job losses and insecurity of employment within the fisheries sector. The most affected have been the most vulnerable — the low level workers — who ought to be the key beneficiaries of RBM. Thus prioritising and protecting vulnerable groups and fishing communities need careful consideration when creating RBM, even in the context of EAF. Rights-based management has also had negative effects on ecological wellbeing through practices such as increased dumping and ‘high grading’ as part of industry's drive for increased efficiency under RBM. Whereas scientists believe that variability is largely due to environmental conditions, fishers strongly feel that dumping, high grading and high fishing pressure are the main factors. One of the positive aspects of RBM has been improved understanding among rights-holders and fishers of the need to consider other organisms in the TAC and to protect these through establishment of marine protected areas, island perimeter closures and limiting bycatch, thereby impacting positively on ecological wellbeing.     

Actions speak louder than words: Tournament angling as an avenue to promote best practice for pelagic shark fishing

Social research can aid in understanding the behaviour of the general public or stakeholders towards natural resources. In the case of recreational fishing, social research aids in integrating anglers' knowledge and attitudes into management frameworks to increase the likelihood of the uptake of new management regulations. Tournament anglers were surveyed at game fishing competitions throughout New South Wales, Victoria, and South Australia between February 2012 and May 2013 to investigate their general beliefs around sharks and their behaviours when targeting pelagic sharks. Over half (55%) of the anglers interviewed practised catch and release of pelagic sharks. Of those, almost all (98%) asserted that they attempt to release sharks in good condition, but a large percentage of anglers (48%) did not use circle hooks that have been shown to increase post-release survival. Results showing some concordance between angler's beliefs and behaviours when targeting pelagic sharks suggest that anglers are cognisant of the functional role of sharks in the ecosystem and would be open to recommendations ensuring the long-term sustainability of recreational fisheries targeting pelagic sharks.     

An evaluation of the Marine Living Resources Act and supporting legal instruments as a framework for implementation of an ecosystem approach to fisheries in South Africa

The Marine Living Resources Act (MLRA), which was enacted in 1998, is the primary legislation addressing South Africa's marine fisheries. In June 2012, another important instrument, the Policy for the Small Scale Fisheries Sector (SSFP) in South Africa, was adopted to rectify the exclusion of many small-scale fishers from access to resources, that had resulted from weaknesses in the MLRA. This paper assesses the MLRA, aspects of the SSFP and selected other subsidiary policies and regulations in relation to current best-practices, especially the extent to which they support an ecosystem approach to fisheries (EAF). The study concludes that there are some serious gaps and shortcomings in the MLRA that should be addressed. These include, among others, the need to: (i) revise the MLRA so as to incorporate requirements for open and transparent management and governance; (ii) entrench the principles of co-management, emphasised in the SSFP, for all fisheries; and (iii) include a legal requirement for detailed management plans for all fisheries. Despite these shortcomings, there has been considerable progress in implementation of EAF, at least in the country's bigger fisheries. However, this should not be seen as a justification for avoiding or delaying a revision of the MLRA to bring it into line with modern best-practices as encompassed by EAF.     

Assessment and management of South African marine resources during the period of the Benguela Ecology Programme: key lessons and future directions

Three important developments in resource assessment and management during the period of the Benguela Ecology Programme are discussed. The first is the recognition of the limited information content for assessment purposes of the available data for many of the Benguela's major pelagic and demersal resources. This has meant that management measures for these resources could attempt no more than to maintain the status quo, rather than to achieve "optimal" utilization. Secondly, a post mortem on the commercial extinction of the kingklip suggests a need to consider Bayesian methods as a means to incorporate additional information into stock assessments. Finally, changes to the management approaches for the hake and anchovy fisheries are argued to have been particular successes, notwithstanding the recent heavily reduced Total Allowable Catch (TAC) for the latter resource. "Management procedures" have been developed and simulation-tested for these two resources. The implications of this approach for the future basis, whereby TACs are set for South Africa's fisheries, are discussed.     

New perspectives in small-scale fisheries management: challenges and prospects for implementation in South Africa

Worldwide, the past 15–20 years has seen a significant shift in thinking and approaches to the management of small-scale fisheries. This is in response to the recognition that conventional fisheries management is not equipped to deal with the complexities, uncertainties and challenges prevalent in small-scale fishery systems. Consequently, a new fisheries paradigm is emerging based on the principles and ideas underpinning systems thinking, complexity theory, participatory democracy and adaptive management. Although fishery science is required to inform management decisions, it must be seen as one of the inputs needed for effective governance. Incorporation of other disciplinary perspectives, knowledge sources and local information is considered necessary for understanding the fishery system and identifying appropriate management responses. Although South Africa has incorporated many of these ideas and principles into broad policies and legislation governing resource management, implementation of this new paradigm in the context of small-scale fisheries is proving difficult. However, recent developments such as the recognition of the socio-economic rights of this group of fishers, the formulation of a new draft small-scale fisheries policy, efforts to identify and address human dimensions in fisheries through research and stakeholder workshops, as well as opportunities for greater participation in policy formulation and management, are all indicative of a shift in institutional culture and approach to this sector. This paper aims to provide an overview of the main ideas underpinning the new small-scale fisheries paradigm and explores the application of these ideas in the context of small-scale fisheries in South Africa. Challenges and prospects for implementing this new management paradigm are discussed, as well as some practical ideas for progressing this new approach.     

A review of the assessments of the major fisheries resources in South Africa

The waters off South Africa's coastline boast a rich mix of commercially fished species. Quantitative assessments of these marine resources have developed from simple methods first applied in the 1970s, to models that encompass a wide range of methodologies. The more valuable resources have undergone regular assessments in recent decades, with frequencies closely related to the management approach employed for each fishery. Many of these assessments form the operating models used to simulation-test candidate management procedures. This paper provides a comprehensive review of the assessments of 11 of the most important fisheries resources in South Africa. Some assessments use simple biomass dynamics models, whereas others are a hybrid of age- and length-based models, each designed to model the specific characteristics of the resource and fishery concerned. Many of the assessments have been disaggregated by species/stock and/or area as related multispecies/stock/ distribution hypotheses have arisen. This paper explores the similarities and differences in the data available and the methods applied. The review indicates that, whereas the status of three of these resources cannot be estimated reliably at present, the status of six resources is considered to be reasonable to good, whereas that of abalone Haliotis midae and West Coast rock lobster Jasus lalandii remains poor.     

Tropical shrimp trawl fisheries: Fishers’ knowledge of and attitudes about a doomed fishery

Tropical shrimp trawl fisheries are unsustainable, and similar sets of management measures are used globally to address the direct and indirect costs of their practices. Yet little is known about shrimp fishers’ perceptions, despite the clear importance of human behaviour in determining the success of fisheries management. This article presents the results of interviews with industrial shrimp trawl fishers from the southern Gulf of California, Mexico, and reveals fishers’ knowledge and attitudes that should be considered when developing management plans for industrial shrimp trawl fisheries. Fishers were asked to comment on problems facing the fishery, management options to address the issues, and the future of the fishery in general. The interviews also elicited new knowledge on effort and valuable components of bycatch, useful to the management process. Among the problems facing the Gulf of California fishery, fishers tended to identify those generated externally—fluctuations in shrimp populations, increases in fishing effort, decreases in shrimp prices and increasing overheads—and thus distance themselves from responsibility for management options. The successes of any mitigation measures for the fishery are likely to depend on proper enforcement and reliable governance, as our study indicates. Should strong enforcement be put in place, then trawl free areas seem to be the most pragmatic way to alleviate problems associated with the fishery; our effort data point to areas that might have greatest acceptance among fishers. A reduction in capacity would clearly complement marine zoning for trawl free areas. In the long run, however, it may be economic extinction of the fishery that reduces pressure on the marine ecosystem.     

Forecasting in South African pelagic fisheries management: the use of expert and decision support systems

Understanding long-term variability of pelagic fish populations is important in developing forecasting strategies for fisheries management and planning. However, many current fisheries models have only short-term datasets available, whereas those of suitable duration often lack reliability. As resources are placed under increasing pressure, all available information should be used to assist management. Two simple rule-based deterministic modelling approaches are described, which use semi-quantitative and qualitative rules to relate recruitment success of South African anchovy Engraulis capensis to physical and biological indices. The first model relates recruitment success to indices of wind and sea surface temperature by way of a rule-based decision support system. In the second model, significant environmental and biological factors were identified and related to anchovy recruitment by way of an expert system approach. These two approaches are evaluated and compared. It is suggested that these types of models, when satisfactorily validated, have great potential in supporting the future management of the South African anchovy fishery in the dynamic environment of the Benguela Current.     

Contrast in life histories of exploited fishes and ecosystem structures in coastal waters off west Canada and east Korea

By reviewing the history of fishery exploitation in the coastal waters of west Canada and east Korea, related with contrasting life history strategies of the dominant species, the fishery management challenges that each country would face in the upcoming decades were outlined. In the ecosystem of the Canadian western coastal waters, the dominant oceanographic feature is the coastal upwelling domain off the west coast of Vancouver Island, the northernmost extent of the California Current System in the eastern North Pacific. In the marine ecosystem of the eastern coasts of Korea (the Japan/East Sea), a major oceanographic feature is the Tsushima Warm Current, a branch of the Kuroshio Current in the western North Pacific. Fishes in the Canadian ecosystem are dominated by demersal, long-lived species such as flatfish, rockfish, sablefish, and halibut. During summer, migratory pelagic species such as Pacific hake, Pacific salmon, and recently Pacific sardine, move into this area to feed. In the late 1970s, Canada declared jurisdiction for 200 miles from their coastline, and major fisheries species in Canadian waters have been managed with a quota system. The overall fishing intensity off the west coast of Vancouver Island has been relatively moderate compared to Korean waters. Fishes in the ecosystem of the eastern Korean waters are dominated by short-lived pelagic and demersal fish. Historically, Korea has shared marine resources in this area with neighbouring countries, but stock assessments and quotas have only recently (since the late-1990s) been implemented for some major species. In the Korean ecosystem, fisheries can be described as intensive, and many stocks have been rated as overfished. The two ecosystems responded differently to climate impacts such as regime shifts under different exploitation histories. In the future, both countries will face the challenge of global warming and subsequent impacts on ecosystems, necessitating developing adaptive fisheries management plans. The challenges will be contrasting for the two countries: Canada will need to conserve fish populations, while Korea will need to focus on rebuilding depleted fish populations.     

Swedish coastal fisheries—From conflict mitigation to participatory management

Several research projects have studied Swedish coastal fishery to investigate the conflict between seals and fishery. In recent years, a strategy of participation by means of co-management has been unfolding. Realising that maintaining the coastal fishery requires societal support and knowledge integration, attempts have been made to introduce the principle of participatory management into the centralised Swedish fisheries management system. However, this co-management approach, presently implemented in six pilot projects, will take a long time to develop through a sustained process of experimentation and improvement.     

Fishery cooperatives in Cuba: Potential benefits,legal feasibility,and governance pre-conditions

Currently there is a strong interest in Cuba in improving the performance of the fisheries sector with respect to social, biological, and economic outcomes. Many important fishery resources appear to be overexploited, and previous fishery regulations have had mixed success in restoring fishery stocks. The current fishing pressure could also have adverse impacts on other valuable ecosystem services that support economic activities such as dive tourism and recreational fishing. A new State policy to expand cooperative enterprises to non-agricultural sectors provides an opportunity for fishery cooperatives to be created for the first time since the early years of the Cuban Revolution. This paper explores the potential ecological, social, and economic benefits of adopting fishery cooperatives as a co-management scheme for Cuba's marine fisheries. It concludes that well-designed fishery cooperatives can offer substantial benefits to the management of the fishery sector. Based on an analysis of the relative success of fishing cooperatives worldwide, guidelines are provided for the design of fishery cooperatives in Cuba.     

Top predators in the Benguela ecosystem — implications of their trophic position

Many top predators in the Benguela ecosystem feed on prey species targeted by commercial fisheries. Their roles as indicators of the state of exploited prey resources, as competitors with commercial fisheries for resources, and as susceptible to impact from commercial fishing on those resources are briefly considered. Trends in the occurrence of anchovy Engraulis capensis and pilchard Sardinops ocellatus in the diet of Cape gannets Morus capensis off South Africa's west coast are related significantly to survey estimates of the abundance of these fish species, and they provide useful confirmation of those estimates. In the 1980s, anchovy decreased in the diet of Cape gannets, but pilchard increased. In both the northern and southern portions of the Benguela system, groundfish were thought to eat most (66–73%) of the total quantity of cephalopods and vertebrates consumed by predators and man in the 1980s. South African fur seals Arctocephalus pusillus pusillus, predatory pelagic fish and man removed roughly equal amounts, with squids, seabirds and cetaceans having a smaller impact. In the 1980s, man and seals removed about two million tons live mass more than in 1930. Indices of the rate of natural mortality of anchovy and pilchard attributable to Cape gannets are not related to biomass of the prey species. That for anchovy was high in 1989 when a poor anchovy year-class was formed. Decreased abundance of anchovy led to poor breeding by Cape cormorants Phalacrocorax capensis in 1989 and 1990. A model linking the Cape cormorant population with anchovy is used to explore the impact of possible exploitation strategies for anchovy on Cape cormorants.     

Economic characteristics and management challenges of the Hawaii pelagic longline fisheries: Will a catch share program help?

To date, none of the fisheries in the U.S. Pacific Islands Region is managed under a catch share program. In light of the NOAA policy to encourage the use of catch shares as a fishery management tool, the Western Pacific Fishery Management Council (WPFMC) listed six commercial fisheries, including the Hawaii pelagic longline fishery, the largest in the region, as potential candidates for catch share programs. This study examines the baseline economic characteristics and the main challenges facing the Hawaii pelagic longline fishery and evaluates the impact of these on the desirability and feasibility of a catch share program for this particular fishery.     

Transferable quotas,efficiency and crew ownership in Whalsay,Shetland

The resource economic theory tells us that individual transferable quotas (ITQs) improve efficiency in the fishing industry by removing the least efficient actors from a fishery and allowing ownership to concentrate in the hands of the most efficient operators. Assertions about the nature of this allocative efficiency are, however, often based on purely theoretical assumptions. This paper presents a case study of the efficient operators remaining in the UK pelagic fishing fleet. After over 30 years of rights-based management (RBM) and 12 years of ITQs, the UK pelagic fleet numbers only 31 large-scale boats. Seven of these operate from the island of Whalsay in Shetland, which, with a population of approximately 1000 people (0.000016% of the population of the UK), is entitled to land around 22% of the UK pelagic catch. A key characteristic of the economically efficient Whalsay fleet is a crew ownership structure. This is now under threat from the long-term dynamics of the UK's ITQ system, as the high price of quota prevents the renewal of the fishery through new entrants. In the majority of global fisheries, where vessel ownership structures do not follow an assumed economic norm, fully marketised transferable rights may not be the most efficient method of management.     

The added value of participatory modelling in fisheries management – what has been learnt?

How can uncertain fisheries science be linked with good governance processes, thereby increasing fisheries management legitimacy and effectiveness? Reducing the uncertainties around scientific models has long been perceived as the cure of the fisheries management problem. There is however increasing recognition that uncertainty in the numbers will remain. A lack of transparency with respect to these uncertainties can damage the credibility of science. The EU Commission's proposal for a reformed Common Fisheries Policy calls for more self-management for the fishing industry by increasing fishers' involvement in the planning and execution of policies and boosting the role of fishers' organisations. One way of higher transparency and improved participation is to include stakeholders in the modelling process itself. The JAKFISH project (Judgment And Knowledge in Fisheries Involving StakeHolders) invited fisheries stakeholders to participate in the process of framing the management problem, and to give input and evaluate the scientific models that are used to provide fisheries management advice. JAKFISH investigated various tools to assess and communicate uncertainty around fish stock assessments and fisheries management. Here, a synthesis is presented of the participatory work carried out in four European fishery case studies (Western Baltic herring, North Sea Nephrops, Central Baltic Herring and Mediterranean swordfish), focussing on the uncertainty tools used, the stakeholders' responses to these, and the lessons learnt. It is concluded that participatory modelling has the potential to facilitate and structure discussions between scientists and stakeholders about uncertainties and the quality of the knowledge base. It can also contribute to collective learning, increase legitimacy, and advance scientific understanding. However, when approaching real-life situations, modelling should not be seen as the priority objective. Rather, the crucial step in a science–stakeholder collaboration is the joint problem framing in an open, transparent way.     

Valuing seafood: The Peruvian fisheries sector

There are tradeoffs in managing fisheries, and ideally such tradeoffs should be known when setting fisheries policies. An aspect of this, which is rarely considered, is the spin-off effect of different fisheries: the economic and social benefits that fisheries generate through processing through distribution and on to the end consumer. This study evaluated the benefits generated in the Peruvian marine fisheries sector through a comprehensive value chain analysis, based on a newly-developed combined ecosystem-economic modeling approach, which was integrated in the widely-used Ecopath with Ecosim approach and software. The value chain was parameterized by extensive data collection through 35 enterprise types covering the marine fisheries sector in Peru, including the world's biggest single-species fishery for anchoveta. While anchoveta is what is known about Peruvian fisheries, the study finds that anchoveta accounts for only 31% of the sector contribution to GDP and for only 23% of the employment. Thus, while anchoveta indeed is the fundamental fish species in the Peruvian ecosystem, there are other fisheries to be considered for management. The study indicates that the economic multipliers for Peruvian fisheries were 2.9 on average over the industry, and that these varied surprisingly little between fleets and between seafood categories indicating that the multipliers can be used beyond Peru to generalize the spin-off effect of the value chain. Employment multipliers vary much more across types of fisheries, but also around an average of 2.9; here it was clear that longer value chains result in more employment.