An evaluation of progress in implementing ecosystem-based management of fisheries in 33 countries

The performance of 33 countries was evaluated for ecosystem-based management (EBM) of fisheries in three fields (principles, criteria and implementation) using quantitative ordination including uncertainty. No country rated overall as ‘good’, only four countries were ‘adequate’, while over half received ‘fail’ grades. A few developing countries performed better than many developed nations. Two case studies test the method. In Indonesia, Raja Ampat and Papua, rated similar to the national evaluation, but better performance might follow successful implementation of a planned EBM initiative. A workshop in Australia rated regional fisheries managed by New South Wales 20% lower for EBM than federally managed fisheries.     

Challenging paradigms in estuarine ecology and management

For many years, estuarine science has been the ‘poor relation’ in aquatic research - freshwater scientists ignored estuaries as they tended to get confused by salt and tides, and marine scientists were more preoccupied by large open systems. Estuaries were merely regarded by each group as either river mouths or sea inlets respectively. For the past four decades, however, estuaries (and other transitional waters) have been regarded as being ecosystems in their own right. Although often not termed as such, this has led to paradigms being generated to summarise estuarine structure and functioning and which relate to both the natural science and management of these systems. This paper defines, details and affirms these paradigms that can be grouped into those covering firstly the science (definitions, scales, linkages, productivity, tolerances and variability) and secondly the management (pressures, valuation, health and services) of estuaries. The more ‘science’ orientated paradigms incorporate the development and types of ecotones, the nature of stressed and variable systems (with specific reference to resilience and redundancy), the relationship between generalists and specialists produced by environmental tolerance, the relevance of scale in relation to functioning and connectivity, the sources of production and degree of productivity, the biodiversity-ecosystem functioning and the stress-subsidy debates. The more ‘management’ targeted paradigms include the development and effects of exogenic unmanaged pressures and endogenic managed pressures, the perception of health and the ability to manage estuaries (related to internal and external influences), and the influence of all of these on the production of ecosystem services and societal benefits.     

A broad-scale assessment of the risk to coastal seagrasses from cumulative threats

Informing the management of coastal marine habitats at broad spatial scales is difficult because of the costs associated with collecting and analyzing ecological data at that scale. Spatially explicit assessments of the risk to coastal marine habitats from cumulative threats provide an alternative approach by identifying sites that are exposed to multiple anthropogenic threats at broad scales. In this study, qualitative measures of vulnerability were combined with geospatial data to evaluate the risk to coastal seagrasses at the scale of the Great Barrier Reef (GBR) region (∼26,000 km²) of Queensland, Australia. The risk assessment outputs identified agricultural, urban and industrial runoff, and urban and port developments as the major anthropogenic activities threatening coastal seagrasses. ‘Hot spots’ with multiple threat exposure were all in industrial port locations and the southern two-thirds of the GBR. There is a distinct discontinuity in threat exposure along the GBR coast with 98% of seagrass meadows in the northern third exposed to only low levels of anthropogenic risk. The clustering of threat exposure is discussed in terms of coastal management policy. The approach outlined in this study provides management agencies a method of achieving maximum return for minimal investment in data collection at broad spatial scales by identifying sites where management intervention would be best targeted.     

Ecological classification of European transitional waters in the North-East Atlantic eco-region

A new methodology to classify European North-East Atlantic transitional waters into ecological types has been developed based on the most important hydrological and morphological features that are likely to determine the ecology of aquatic systems in transitional waters. Hydrological indicators help identifying if a transitional water area is dominated by fresh or sea water and/or by intertidal or subtidal areas, while morphological indicators allow an estimation of the complexity of the transitional water and the diversity of the habitats involved. Twelve transitional waters of the southern Bay of Biscay were classified using this methodology and the five hydro-morphological types obtained were validated with benthic macro-invertebrate data. Transitional waters with a complex morphology showed the highest values of species diversity, while those with a smaller tidal influence showed lower species diversity. The ‘Scrobicularia’ and ‘Abra’ assemblages, previously identified in the study area, were found to be related to different types of transitional waters. The ‘Abra’ assemblage only appeared in estuaries with a complex morphology and dominated by tidal influences, while the ‘Scrobicularia’ assemblage was detected in all the transitional waters except for a single coastal lagoon. This classification of transitional waters may therefore be useful to establish the biological reference conditions needed for European Directives.     

Environmental justice implications of Maritime Spatial Planning in the European Union

This paper examines the implications of environmental justice in the regime for Maritime Spatial Planning (MSP) currently developing in the European Union (EU). An ‘ecosystem-based approach’ to marine management is enshrined in the new Integrated Maritime Policy and Marine Strategy Framework Directive and forms the basis of MSP. This concept is intended to encompass all aspects of an ecosystem, including the human element. Yet the modes of including meaningful public participation in the decision-making process for MSP remain undetermined. At the same time, the Aarhus Convention (on access to information, public participation in decision making and access to justice in environmental matters) empowers non-governmental organisations to hold EU Member States to account. Consequently the issue of transparency will gain increased importance, as will linkages between human and environmental rights. Such public interest-based activism on the part of NGOs has the potential to enforce the developing framework for stakeholder engagement within MSP, but it also has implications worth considering regarding the appropriate role of interest-based organisations in the international political arena.     

Marine spatial planning: Lessons learned from the Portuguese debate

This paper presents and discusses legal, methodological and political frameworks for the development of the proposed Portuguese Marine Spatial Plan initiated in 2008. It considers lessons learned and is informed by discussions that have taken place since publication of the ‘Roadmap for Maritime Spatial Planning: Achieving Common Principles in the EU’. New goals are based on horizontal planning tools that cut across sea-related sectoral policies and support joined up policy making. It is in this context that Marine Spatial Planning (MSP) emerged as an essential process for sustainable decision making. The OSPAR Commission undertook an overview of national planning systems within its administrative boundaries, which confirmed spatial plans reduced conflicts. However, problems exist accessing good quality data and dealing with entrenched sectoral views. Furthermore, the transboundary nature of marine resources requires cooperation between neighbouring states. In 2006, Portugal developed a ‘National Sea Strategy’ that recognized the importance of developing its maritime space while valuing marine habitats and biodiversity. MSP development of the Portuguese sea commenced in 2008 and findings are now evaluated. They showed adaptation of existing tools to be possible and desirable, provided undertaken cautiously and found conceptual ambiguities were barriers to conflict resolution. Furthermore they showed management strategies should be designed and analysed on a case by case basis, recognising temporal and spatial variations.     

Leaning on user-groups: The role of civil society in fisheries governance

Fisheries have long been managed through public–private partnerships based on collaboration between government and user-groups. The alleged benefits of involving the latter—as representatives of civil society—are a management system that is more flexible and legitimate than one based exclusively on top–down command and control. A question that is rarely addressed is whether civil society is up to the task. Are voluntary associations fit—‘technically’ and ‘democratically’—to take on management responsibilities? Assessing the pros and cons of involving civil society in fisheries governance requires a closer look at the role of user-groups in public policy-making. This paper attempts to do that by examining certain aspects of the Norwegian system of fisheries management, focusing—in particular—on the role of its most prominent civil society player: the Norwegian Fishers’ Association. The association has long been a privileged partner, virtually monopolizing the attention and goodwill of government. How has this been justified, and does it still serve its original purpose? As the fishery has changed, so—we contend—has the association: from something akin to a public interest group into what is essentially a ‘trade union’ pursuing the economic interests of its most powerful members. How and why did this change—in goals and priorities—come about, and is it tenable that this particular partnership continues? What lessons, if any, can be drawn from the Norwegian case about the pros and cons of user involvement, interactive governance and the role of civil society in fisheries management?     

Ghost fishing in European waters: Impacts and management responses

In this paper we review levels of net loss, what happens to the gear once it has been lost, and the resulting levels of ‘ghost catches’ made in passive net fisheries in the EU. We also consider ghost catches resulting from lost gear in other types of fisheries, and the extent to which the value of ghost catches has been quantified. We consider why fishing gear is lost, and profile common management responses. We present a cost benefit model to assess the relative cost effectiveness of different management measures, and suggest that gear retrieval programmes may provide less value for money than other management responses.     

Vulnerability assessment of the impact of sea-level rise and flooding on the Moroccan coast: The case of the Mediterranean eastern zone

The eastern part of the Mediterranean coast of Morocco is physically and socio-economically vulnerable to accelerated sea-level rise, due to its low topography and its high ecological and touristic value. Assessment of the potential land loss by inundation has been based on empirical approaches using a minimum inundation level of 2 m and a maximum inundation level of 7 m, where scenarios for future sea-level rise range from 200 to 860 mm, with a ‘best estimate’ of 490 mm. The socio-economic impacts have been based on two possible alternative futures: (1) a ‘worst-case’ scenario, obtained by combining the ‘economic development first’ scenario with the maximum inundation level; and (2) a ‘best-case’ scenario, by combining the ‘sustainability first’ scenario with the minimum inundation level. Inundation analysis, based on Geographical Information Systems and a modelling approach to erosion, has identified both locations and the socioeconomic sectors that are most at risk to accelerated sea-level rise.     

Ten recommendations for advancing the assessment and management of non-indigenous species in marine ecosystems

The main objective of recent international legislative measures and policies concerning marine ecosystems is to ensure sustainable environmental management to maintain a good status for marine waters, habitats and resources, with the ultimate target of achieving an integrated ecosystem-based approach to management. Because bioinvasions pose significant threats to marine ecosystems and the goods and services these provide, non-indigenous species (NIS) are included in the more recent legislative documents. A major challenge for the scientific community is to translate the principles of the legislative directives into a realistic, integrated ecosystem-based approach and at the same time provide stakeholders with best practices for managing NIS. The aim of this paper, prepared by members of the Working Group on Introductions and Transfers of Marine Organisms (WGITMO) of the International Council for the Exploration of the Sea (ICES), is to provide guidance for the application of NIS related management in the European Union Marine Strategy Framework Directive (MSFD). Ten recommendations, including NIS identification, standardization of sampling and data, indicators, propagule pressure and management issues are considered in this paper. While most of these suggestions were developed to improve the implementation of the MSFD, several may be more widely applicable.     

Trade measures and the combat of IUU fishing: Institutional interplay and effective governance in the Northeast Atlantic

The use of trade measures to combat illegal, unreported and unregulated (IUU) fishing in the Northeast Atlantic has evolved from unilateral denial of the landing of fish taken outside international quota arrangements to a multilateral Scheme of Control and Enforcement under the North-East Atlantic Fisheries Commission (NEAFC). International trade rules have not constrained this development, mostly due to successful management of the interplay between international resource management and trade regimes. States protect resource management objectives from such constraint by inserting clauses that establish a normative hierarchy, or they employ various means for adapting IUU measures to the ‘environmental window’ of the global trade regime. The fact that regional states have introduced trade restrictions only when non-restrictive or less restrictive measures have failed enhances such compatibility, as do the gradual shift from unilateral to multilateral measures and the rise in transparency, openness and target-state involvement. None of those features reduces the effectiveness of regional trade measures; they minimize tension with trade commitments and largely strengthen their clout in the struggle to combat IUU fishing in the Northeast Atlantic.     

‘Human-dolphin (Tursiops truncatus Montagu, 1821) cooperative fishery’ and its influence on cast net fishing activities in Barra de Imbé/Tramandaí, Southern Brazil

‘Human-dolphin (Tursiops truncatus Montagu, 1821) cooperative fishery’ and its influence on cast net fishing activities in Barra de Imbé/Tramandaí, Southern Brazil - aims to describe ‘fishing with dolphins’ or ‘botos’ (Tursiops truncatus Montagu, 1821), its importance in mullet fishing in conjunction with the traditional knowledge of artisanal fishermen, and the negative economic impact that tourism has had on mullet fishing in Barra de Imbé/Tramandaí (29°58′S 50°07′W). In November and December of 2009, 22 artisanal fishermen associated with the Tramandaí Fishermen’s Union were interviewed. During these interviews, questionnaires were employed utilizing both open and closed questions that dealt with behavioral ecology, biological and interactional issues related to bottlenose dolphins, and small-scale fishing in the region. All those interviewed described “boto fishing,” in which bottlenose dolphins “helped out the fishermen.” According to these interviews, this kind of fishing, marked by close interaction between humans and ‘botos,’ allows nets to be cast fewer times and with captured fish yields that are greater than, when there is no dolphin is present. The fishermen maintain that this increased productivity results from ‘botos’ showing them exactly where the schools of fish are located below the water surface. This has made it possible to observe the impact that dolphin fishing has on the monthly incomes of these fishermen, and there is concern among fishermen, that the intense tourism may one day contribute to the disappearance of the ‘boto,’ a situation, they believe would negatively affect their fishing activities.     

Generating the evidence for marine fisheries policy and management

The uptake of research in marine fisheries management and policy making depends on how effectively fisheries managers, researchers and scientific advisers communicate the needs for evidence, and the results and policy implications of research. The MariFish network of the major European funders of marine fisheries has therefore undertaken a study of current practices relating to communication of research needs and results, identifying strengths and weaknesses, and consequently how two-way communications, and hence the effectiveness of generating evidence for marine fisheries policy making and management, can be improved. Conclusions and recommendations for ‘good practice’ include the importance of building good relationships and trust between researchers and fisheries managers, the need for fisheries ministries to have sufficient inhouse scientific capacity to act as ‘intelligent customers’, and the key role of interpreters of research whose skills and career paths need to be carefully developed.     

Defining and estimating global marine fisheries bycatch

Unselective fishing catches non-target organisms as ‘bycatch’—an issue of critical ocean conservation and resource management concern. However, the situation is confused because perceptions of target and non-target catch vary widely, impeding efforts to estimate bycatch globally. To remedy this, the term needs to be redefined as a consistent definition that establishes what should be considered bycatch. A new definition is put forward as: ‘bycatch is catch that is either unused or unmanaged’. Applying this definition to global marine fisheries data conservatively indicates that bycatch represents 40.4 percent of global marine catches, exposing systemic gaps in fisheries policy and management.     

Seasonal differences in the physiology of Carcinus maenas (Crustacea: Decapoda) from estuaries with varying levels of anthropogenic contamination

This study reports the seasonal variability in aspects of the physiology of the shore crab Carcinus maenas from three estuaries in South-west England, each with varying anthropogenic inputs: Avon Estuary (‘relatively low’ impact), Yealm Estuary (‘intermediate’ impact) and Plym Estuary (‘relatively high’ impact). Crabs collected over 12 months from the Avon had a significantly ‘lower’ physiological condition in winter and spring compared to summer and autumn; in particular, haemocyte phagocytic capability (a general indicator of immune function) was significantly higher in winter and spring compared to summer and autumn, and total haemolymph antioxidant status (an indicator of oxidative stress) was significantly lower in winter compared to the remainder of the year. Potentially, shore crabs may be more susceptible to the effects of contaminant exposure, such as increased immunotoxicity (thus, reduction of immune function) and/or oxyradicals (or reactive oxygen species) exposure) especially in seasons of increased susceptibility i.e. summer/autumn (lower phagocytic capability) and winter (lowest antioxidant function). As the Avon was taken to represent the ‘reference’ site, this pattern is considered to reflect the ‘normal’ seasonal variability in shore crab physiology. Shore crab physiological condition from the ‘relatively high’ impact estuary (Plym) revealed increased cellular viability and antioxidant status in autumn and winter compared with that of the ‘standard’ pattern (Avon) However, crabs from the intermediate impact estuary (Yealm) only demonstrated significant physiological differences in summer as shown by a lower cellular viability. All crabs had been exposed to PAHs (confirmed by the presence of PAH metabolites in their urine) which may account for the observed differences in shore crab physiology. In conclusion, to aid understanding of the potential contaminant impacts on biota it is imperative that the ’normal’ seasonal variability of physiological condition be established. Biological effects-based monitoring studies should therefore be employed seasonally to potentially highlight ‘windows of sensitivity’ to contaminant impact.     

Perspectives on effects-based management of New Zealand exclusive economic zone resources

Adoption of effects-based management, environmental effects-based management (EEM) or ‘learn as we go, is essential to open up access to all of New Zealand’s Maritime Exclusive Economic Zone (EEZ) resource base into the future. Utilising knowledge gained from ‘learn as we go’ and combining it with the integration of sectarian agendas and establishment of a central government EEZ agency empowered by an Act of Parliament will ensure future food and energy security is met. To achieve this integration of environmental effects management with security of access and stakeholder buy in is needed. Government hierarchies should not limit integration under EEM, policy should be non-separatist, and regions should be defined using ocean zoning. Future food and energy security can then be thought of in terms of environmental carrying capacity, moving away from regimes overly focussed on regulating for development. Ocean zoning could be used to assign property rights, with all activities subject to EEM regulation and enforcement of adaptive environmental standards through a central government EEZ Ocean Affairs agency. An overarching strategy to provide a framework guiding the development of New Zealand’s EEZ organisational infrastructure and decision making is needed to achieve this.     

Expanding fisheries co-management to ecosystem-based management: A case in the Shiretoko World Natural Heritage area,Japan

Fisheries co-management in the Shiretoko World Natural Heritage area was expanded to ecosystem-based management, in which the fisheries sector plays an essential role in management. A marine management plan was drawn up to define the management objectives, strategies to maintain major species, and methods for ecosystem monitoring. A network of coordinating organizations from a wide range of sectors was established to integrate policy measures. Experience from this case could inform ecosystem-based management in other countries where large numbers of small-scale fishers take a wide range of species under a fisheries co-management regime.     

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.     

Overlooked small and juvenile piscivores dominate shallow-water estuarine “refuges” in tropical Australia

A model was developed to estimate the relative impacts of different functional groups of piscivores on the shallow-water estuarine nursery assemblage of tropical north-eastern Australia. Data on variability in the occurrence, number and type of fish in the diet of different piscivores was combined with estimates of the abundance of each group. The model predicts that previously overlooked small and occasional or ‘minor’ piscivores, such as sillaginids, ambassids, sparids and small juvenile carangids, inflict mortality on new recruits to shallow-water nursery habitats that is orders of magnitude greater than that imparted by more conspicuous larger piscivores. Because of their high abundance, a shift in the diet of minor piscivores to prey on new recruits results in a massive increase in the consumption of fish prey by the piscivore assemblage as a whole. Even if the evidence that minor piscivores switch to target new recruits was rejected, the model shows that the highly abundant minor piscivores must still exert a significant proportion of predation mortality experienced by recruiting fishes. As a broad functional group, minor piscivores occur in most aquatic systems around the globe and are likely to play an important but largely overlooked role as predators that shape communities through predation on critical early life stages of other fishes.