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.     

The 1995 FAO Code of Conduct for Responsible Fisheries: Adopting,implementing or scoring results?

The paper presents the results of a major assessment of Code adoption and implementation in nine fishing countries in Asia (China, Thailand, Vietnam), Africa (Senegal, Guinea Bissau and Guinea) and in the Caribbean (Jamaica, Dominican Republic and Trinidad & Tobago), which are part of the international research project ECOST. The main findings are that the Code as an international policy instrument remains relevant and adaptable to the current international fisheries context, and that its guiding principles and provisions have been endorsed and adopted in almost unanimous fashion by the countries covered, and integrated into fisheries policy letters and legal frameworks. However, results also suggest that tackling the truly difficult issues in fisheries, such as combating illegal, unreported and unregulated (IUU) fishing or adjusting fishing overcapacity has been a lot less successful. The design and implementation of necessary measures often remains very weak in domains with important economic and political dimensions. The causes for this are attributed to a mix of administrative inertia, lack of political will and stamina, and short-sighted economic considerations.     

Research into fisheries equity and fairness—addressing conservation burden concerns in transboundary fisheries

Conservation and management of transboundary fisheries must account for diverse national interests while adopting compromises necessary to develop and implement robust conservation and management measures. The United Nations Fish Stocks Agreement requires states to ensure that conservation and management measures for straddling and highly migratory fisheries do not transfer a disproportionate burden of conservation action onto developing states. However, fulfilling this obligation in transboundary fisheries is undermined by the lack of agreed transparent frameworks for assessing the impact of alternative conservation and management measures, and distributive decision making processes for adopting measures that meet scientific and equity obligations. A new informal and multi-disciplinary research partnership, the Fisheries Equity Research Network, has been established to encourage international research into the equitable distribution of conservation limits in trans-boundary oceanic fisheries. The Fisheries Equity Research Network will research transparent and equitable rules and frameworks for assessing and distributing conservation burdens in transboundary fisheries.     

Accounting for heterogeneity in small-scale fisheries management: The Amazon case

Tropical small-scale fisheries are highly heterogeneous with respect to a wide range of fisheries characteristics, but that heterogeneity has generally not been adequately studied or considered in management. This study investigated fisheries heterogeneity and the extent to which it is accounted for in management regulations in eight small-scale fishing communities located in floodplain ecosystems of the Amazon basin. Analyses of 29,844 fishery landing interview data revealed that fisheries heterogeneity with respect to gear, habitat, species composition, and total catch and fishing effort was high across all communities, but low over the years in the same communities, indicating that each community must be considered as a distinct management unit. Data analyses also revealed that many important community fisheries characteristics were not accounted for by government- and community-based management regulations. Total catch and fishing effort were largely unregulated; there were no size or closed season limits for one-third of the most important fishery species; and the nursery habitats used by most fishery species were not protected in any fashion. Clearly, increased attention to cross-community fisheries heterogeneity can improve the design and implementation of management regulations. The management problems created by the heterogeneity of small-scale fisheries are discussed, and the potential of the “barefoot ecologist” concept to address them is considered.     

POST–the Pacific Ocean salmon tracking project

For most of history, the ocean has remained nearly opaque to study, and it has been difficult to understand where salmon or other marine animals go or how they use the ocean. This greatly limits the ability of oceanographers and fisheries biologists to improve the management of many marine resources. The technical and scientific basis now exists to track the ocean movements of individual marine fish for months or years at a time. In this article, we review how new technologies might be applied to salmon in particular. Our conclusion is that animals as small as juvenile Pacific salmon can be followed for months to years at sea, and thus over great distances. By identifying the migration pathways for individual salmon and specific populations of Pacific salmon, we can establish their ocean foraging grounds. We outline the approaches and initial results from the Census of Marine Life program pacific ocean salmon tracking (POST). The research program involves two distinct aspects: (1) the development of an acoustic array for tracking the movements of Pacific salmon during their shelf-resident phase of the life history and (2) the use of archival (data storage) tags to measure aspects of their local environment and to delineate their open ocean migration pathways off the shelf. We report on some of the preliminary findings from the first year of the field project using acoustic tags.     

Contextual factors influencing sustainable fisheries in Mexico

Sustainable fisheries take into consideration that managed fisheries ecosystems shift over time in response to evolving environmental as well as market and political factors. These contextual forces are especially valuable in understanding developing countries such as Mexico, where the unconsolidated fisheries administration faces productive marine ecosystems but unsustainable fisheries. To recognize the issues that have inhibited the consolidation of a regulatory system for sustainable fisheries, a contextual factor analysis was applied to the co-development of two current policies in the Mexican fishery regime: fisheries and environmental policies. Six historical phases have been identified in which there are few long periods of stability and frequent short periods of radical change that alternate between stable and adverse contextual situations. These short and contrasting contextual situations cause a kind of tug-of-war in Mexican fisheries policy-making. On the one hand, domestic economic, scientific, and technological forces seem to slowly lead toward the consolidation of sustainable fisheries; on the other hand, domestic policies drift from one position to another at other timing than the international fisheries and environmental policies. Although recent crises seem to highlight new periods of radical change in Mexico, they also provide an opportunity to adopt new structural plans to consolidate domestic forces as a basis for long-term strategies.     

Perspectives of the coastal and marine fisheries of the Bay of Bengal,Bangladesh

Bangladesh has vast coastal and marine resources along its south edge. Due to the geographical position and climatic condition, the coastal area of the country is known as one of the highly productive areas of the world. Bangladesh is rich not only in terms of its vast water areas but also in terms of the biological diversity. One of the unique features of the coastal areas is the influence of the mangrove forests, which support a high number of fishes and other commercially important aquatic organisms. The biological and ecological values of the Bay of Bengal have been pointed out by many authors. The coastal and marine fisheries have been playing considerable roles not only in the social and economic development of the country but also in the regional ecological balance. A large number of commercially important fishes have long been exploited which are of high export values. Shrimp aquaculture has become a highly traded export-oriented industry for the last few decades. In spite of having bright prospects, marine aquaculture on a commercial basis as well as marine stock enhancement and sea ranching are yet to be developed. The marine fisheries sector has been suffering from chronic disintegration and mismanagement that have led to many consequences. Most of the commercially important fish stocks are either overexploited or under threat. Marine pollution has reached a level that could create an unmanageable situation in the near future; coastal shrimp farming has generated considerable debates due to its adverse environmental and socioeconomic impacts. The Bay of Bengal and its coastal areas are one of the most poorly studied areas of the world although it possesses high potential for further stock improvement. Proper attention is needed in every aspect of exploitation, handling and processing, export and marketing as well as in biological and institutional management strategies. The Bay of Bengal has been increasingly important for local development as well as for a global perspective. The coastal and marine fisheries of the Bay of Bengal are briefly reviewed in this paper to provide a salient feature of the available information and resource base and to identify future research and management needs.     

Changes in recreational shore anglers’ attitudes towards,and awareness of,linefish management along the KwaZulu-Natal coast,South Africa

Management of recreational fisheries cannot be based on biological and stock assessment data alone but needs to include appropriate social aspects (including knowledge, attitudes and behaviour) of anglers within the fishery. The primary purpose of this study was to evaluate and complement existing recreational fisheries research, through the analysis of demographic and psychographic angler attributes collected from two independent, shore-based snapshot monitoring surveys conducted on the KwaZulu-Natal (KZN) coastline of South Africa, in 1994–1996 and 2009–2010. Results show significant changes between the two survey events in the demographics of anglers (including ethnic composition, age distribution, years of fishing experience and employment status) participating in the KZN shore-based linefishery. Traditional management regulations (minimum size limits, daily bag limits and closed seasons), though appearing to have support, have had limited effectiveness, based on the increased levels of admitted non-compliance and poor knowledge of regulations for target species. Anglers in both surveys believed that catches had declined over the years, with overfishing being the most common reason given. The results are discussed in the context of changing management practices in the KZN recreational shore-based linefishery. The implications of changes in fisheries management policies and responsibilities along the KZN coast are highlighted.     

Transboundary research in fisheries

Spatial boundaries have become an indispensable part of regimes and tools for regulating fisheries, with examples including marine protected areas, regional fisheries management organizations and Exclusive Economic Zones. Yet, it is also widely acknowledged that boundaries are a social construct, which may be resisted by both fishers and fish ecology. The ensuing spatial and institutional mismatches have been shown to frustrate management efforts, exacerbating issues of non-compliance and ultimately leading to conflicts and overfishing. Interestingly, the often static and rigid nature of these boundaries has also led to a concomitant research interest in ‘transboundary’. This paradoxical situation of more boundary-setting entailing more transboundary thinking warrants a deeper understanding about boundaries and the role of transboundary research in fisheries. The aims of this review article are twofold: (1) a theoretical clarification on the meanings and uses of spatial boundaries drawing on geographical “boundary studies” literature; and (2) a construction of a typology that outlines how transboundary research is being articulated and envisioned. Together, the study reveals that transboundary scholarship in fisheries are mostly related to resources, fleets, trade and governance aspects and that dealing with the “boundary paradox” encompasses re-incorporating, re-scaling and re-imagining of boundaries. This article provides a conceptual basis for reflecting upon boundaries in world's fisheries and opens up discussions for a more nuanced boundary application that can better cope with multi-level interactions and dynamicity.     

Being heard: Thinking through different versions of rationality,epistemological policing and dissonances in marine conservation

Emerging from ethnographic research conducted on the west coast of South Africa, this paper explores the ways in which fishers contrast their experience of fishing prior to the implementation of the Marine Living Resources Act, and the rise of fortress style conservation in fisheries management. Conservation as rhetoric has been used as a powerful means of supporting and justifying fisheries management objectives. The paper argues that fishers engage with their environments in ways that are different from how management understands human–nature relations. As a consequence, fortress style fisheries management and policing disallow fishers to engage with the sea in the ways that are intrinsic to their fishing practices. This results, in many instances, in curtailing the ways in which fishers are allowed to think about and interact with the sea. With the impending implementation of EAF in South Africa and the global call for working with multiple knowledges, the paper calls for relational ways of engaging in conservation.     

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.     

Migration dynamics of Pacific herring (Clupea pallasii) and response to spring environmental variability in the southeastern Bering Sea

In the southeastern Bering Sea, Pacific herring (Clupea pallasii) migrate from the Pribilof Islands region where they overwinter, to the Alaska coast where they spawn in spring. The migration sustains a nearshore commercial fishery that targets roe-bearing females just prior to spawning. Herring also are taken as bycatch in groundfish trawl fisheries, where time and area closures in these fisheries are triggered by herring bycatch caps. Using herring bycatch data collected since the 1970s by National Marine Fisheries Service (NMFS) observers aboard groundfish fishing vessels, a retrospective analysis was conducted to describe the seasonal migration pattern of Pacific herring in the southeastern Bering Sea and to study its spatial and temporal variability. Observed changes in herring catch per unit of effort were compared with variability in climate and oceanographic conditions. The seasonal migration is complex, but annual shifts in migration routes and a possible northward shift of the overwintering grounds was identified. Pre-spawning herring aggregated in different areas depending on whether spawning occurred early or late in spring. The thermal structure of the ocean around the ice edge appears to influence herring migration timing and route as well as spawning date. Thus, on the basis of recent changes in sea-ice extent and duration, we suggest that the herring bycatch savings area that was developed from data collected in the 1980s should be revised to reflect prevailing conditions.     

The Precautionary approach to fisheries management: How this is taken into account by Tuna regional fisheries management organisations (RFMOs)

For several decades it has been acknowledged that there is an urgent need for new approaches to fisheries management, embracing conservation and environmental considerations. The voluntary Code of Conduct on Responsible Fishing and the United Nations Fish Stocks Agreement provide the formal basis for the Precautionary Approach to fisheries management. Some tuna Regional Fisheries Management Organisations such as the WCPFC and IATTC make explicit mention of these codes in their conventions, whilst others, whose conventions do not explicitly address the Precautionary Approach, are searching for ways in which to take these codes into consideration. In practical terms, the scientific obligations to Precautionary Approaches are to determine the status of the stock(s) relative to limit and target reference points, to predict outcomes of management alternatives for reaching the targets and avoiding the limits, and to characterise the uncertainty in both cases. A convenient framework to conduct management evaluations is through the use of harvest control rules, for which managers agree on specific management actions under their control which are evoked according to levels of stock status relative to predefined reference points. These pre-agreed management actions are then simulated for a range of scenarios. This paper presents the ways in which tuna RFMOs are currently incorporating the precautionary approach in their fisheries management as well as suggestions for possible best practice.     

“Fish as food”: Exploring a food sovereignty approach to small-scale fisheries

This article explores how conceptualizing fish as food, rather than primarily as a resource or commodity supports a shift towards more systems-based approaches to engaging with fisheries (i.e. considering the relationships between ecosystems, people, management and policy). A “fish as food” lens is operationalized by drawing on the theory and practice of food sovereignty. While fishing people and communities have always been a core part of the food sovereignty movement, there have been limited efforts in the academic literature to explore these connections directly. Drawing on examples primarily from a Canadian context, it is argued that a deeper engagement between fisheries and food sovereignty is long overdue, particularly as a growing body of research on small-scale fisheries seeks to address social-ecological relationships and issues of power that are also at the core of a food sovereignty approach. This article identifies the opportunities and limitations of engaging with food sovereignty in the context of small-scale fisheries and suggests a series of key questions for future fish as food research and policy.     

Developing an intermediate-complexity projection model for China's fisheries: A case study of small yellow croaker(Larimichthys polyactis) in the Haizhou Bay,China

Projection models are commonly used to evaluate the impacts of fishing. However, previously developed projection tools were not suitable for China's fisheries as they are either overly complex and data-demanding or too simple to reflect the realistic management measures. Herein, an intermediate-complexity projection model was developed that could adequately describe fish population dynamics and account for management measures including mesh size limits, summer closure, and spatial closure. A two-patch operating model was outlined for the projection model and applied to the heavily depleted but commercially important small yellow croaker(Larimichthys polyactis) fishery in the Haizhou Bay, China, as a case study. The model was calibrated to realistically capture the fisheries dynamics with hindcasting. Three simulation scenarios featuring different fishing intensities based on status quo and maximum sustainable yield(MSY) were proposed and evaluated with projections. Stochastic projections were additionally performed to investigate the influence of uncertainty associated with recruitment strengths and the implementation of control targets. It was found that fishing at FMSY level could effectively rebuild the depleted stock biomass, while the stock collapsed rapidly in the status quo scenario. Uncertainty in recruitment and implementation could result in variabilities in management effects; but they did not much alter the management effects of the FMSY scenario. These results indicate that the lack of science-based control targets in fishing mortality or catch limits has hindered the achievement of sustainable fisheries in China. Overall, the presented work highlights that the developed projection model can promote the understanding of the possible consequences of fishing under uncertainty and is applicable to other fisheries in China.     

Recontextualising inshore fisheries: The changing face of British inshore fisheries management

Inshore fisheries are coming under increasing pressure to account for wider environmental impacts and relations with other users of marine space. However approaches to inshore fisheries management across Britain’s devolved governments are becoming even more strikingly divergent. While in England the century old local Sea Fisheries Committees are to be replaced with modernised structures, and in Scotland there are efforts to move to a locally driven management system, in Wales there has been a retreat from local co-management. Not only do the reforms pose ongoing challenges for good governance, not least in the handling of cross-scale interactions and user group participation, but they may also fall short in providing for systematic and full integration of fisheries and marine environmental management.     

The EU's failed attempt to innovate with Regulation 1026/2012

Cooperation is one of the cornerstones of the international fisheries regime. It requires States to work together for the conservation and management of the fisheries resources. This applies even stronger with respect to shared fisheries resources. However, negotiating a cooperative solution is not always easily achievable for the parties involved and the international regime does not provide for consequences in such cases. Faced with such a problem and seeking a new solution to it, the EU adopted Regulation 1026/2012, equipping itself with a framework for adopting measures against third countries. This innovative solution challenges certain aspects of the international duty to cooperate and its negotiations aspect. The EU's innovation has so far failed because it lacks clear international support and basis in the international regime. This failure exemplifies one of the limits of unilateralism for generating developments in international fisheries law.     

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.     

Fleet sizes,fishing effort and the ‘hidden’ factors behind statistics: An anthropological study of small-scale fisheries in UK

The assessment of fishing effort is a vital part of fisheries management. However, assessing fishing effort by small-scale local fleets is often problematic, partly because of the complex socio-economic and cultural factors that govern the labour patterns of different fisheries employing different fishing practices. Often, official statistics produced by governmental agencies do not fully capture these factors, so a more holistic understanding of regional fisheries is required. Some contribution by social anthropologists is thus called for, in order to assess actual fishing effort and the trend of regional changes in fishing activities.     

Precious coral fisheries management in Taiwan—Past,present & future

Taiwan used to have the biggest precious coral fisheries industry in the world. However, due to changes in the fishery, including increased fishing restrictions and the replacement of obsolete vessels, the scale of the industry had been gradually reduced since 1979. Unfortunately, the initiative proved to be poorly managed and resulted in an increase in illegal, unreported and unregulated (IUU) coral fishing. This forced the government to review and amend the precious coral fisheries management regulations, which had been in place for decades. The Taiwanese government introduced stringent monitoring, control and surveillance (MCS) management methods, already used in deep water fisheries, as a precautionary approach. At the same time, an investigation and evaluation of existing resources was carried out. Together, these initiatives were introduced in order to encourage the domestic industry to adopt the concept of ecosystem-based fishery management.