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?     

Co-management and “consciousness”: Fishers’ assimilation of management principles in Chile

Chile's new Management Area system delegates management responsibility to organizations of artisanal shell-fishers on the condition that they team with professionally trained marine biologists. A survey of participating fishers in Chile's Fourth and Fifth regions examined four social benefits predicted to result from this type of co-management: (1) improved rapport between fishers and the state, (2) greater awareness among fishers of ecology and the benefits of management, (3) cooperation between fishers and scientists, and (4) unity between fishers. A discussion analyzes the principal benefit encountered—fishers’ newfound “consciousness” of the value of management—within the context of co-management and territorial use rights.     

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.     

Development of oil formation theories and their importance for peak oil

This paper reviews the historical development of both biogenic and non-biogenic petroleum formation. It also examines the recent claim that the so-called “abiotic” oil formation theory undermines the concept of “peak oil,” i.e. the notion that world oil production is destined to reach a maximum that will be followed by an irreversible decline. We show that peak oil is first and foremost a matter of production flows. Consequently, the mechanism of oil formation does not strongly affect depletion. We would need to revise the theory beyond peak oil only for the extreme — and unlikely — hypothesis of abiotic petroleum formation.     

Institutional and substantial uncertainty—Explaining the lack of adaptability in fish stocking policy

Adaptive management implies a system in which policy and practice are constantly revised in a continuous circular process to accommodate new ecological knowledge. In the case of current fish stocking practices, there is an evident gap between science and practice indicating a lack of adaptability. While fish stocking is perceived as a solution to many problems of modern fishery management, scientific researchers warn that current practices, including introducing alien populations, seriously threaten the sustainability of fish stocks. The aim of this study was to address, explain the existence of and, finally, discuss the prospect of narrowing this gap. For this purpose, the characteristics of the policy subsystem were analyzed. The empirical findings highlight the wickedness of the policy problem. The substantial and institutional uncertainties surrounding the issue are proposed as the main reasons for the deficits in adaptability. Fish stocking decisions are made within a complex policy subsystem that involves multiple actors and policy-making institutions, conflicting goals and competing notions of the problem. Cross-coalition learning—learning between coalitions of actors with different problem definitions, forming a joint view—is a necessary and, in the case of fish stocking, lacking variable in the adaptive management process.     

Slow steps towards management of the world's largest tuna fishery

Today, the tuna fishery of the western and central Pacific is one of the world's largest fisheries. Annual catches exceed 2 million mt—approximately 50% of the global tuna catch—with an estimated landed value of USD 3 billion (in 2005). The fishery expanded rapidly from the mid 1980s, following the development of the purse-seine fishery. From the mid 1990s, it was recognised that a Regional Fisheries Management Organisation was required to facilitate cooperation in the management of the resource. Following almost a decade of negotiations and planning, the Western and Central Pacific Fishery Commission (WCPFC) was established in 2004. During the interim period, stock assessments for the key tuna species were developed and revealed that for two species (yellowfin and bigeye tuna) there was concern regarding the increased levels of fishing mortality. However, declarations and resolutions calling for restraint in the expansion of fishing effort were largely unheeded over the last decade and, to date, the WCPFC has been unable to introduce any measures to effectively reduce (or limit) the level of fishing mortality on yellowfin and bigeye tuna. This paper proposes a number of mechanisms for improving the performance of the WCPFC with respect to meeting the conservation and management objectives of the commission and argues that Pacific Island nations need to collectively take the lead to ensure the effective management of the resource.     

Understanding and contextualizing social impacts from the privatization of fisheries: An overview

Fisheries management around the world has experimented with regulations to promote privatization, in order to reach such multifaceted goals as ending overfishing and reducing economic inefficiencies. This review surveys a wide range of empirical experiences in different contexts around the world to help provide a fuller picture of potential and sometimes disparate consequences from privatization in general and new ways of organizing around fishing that can follow in the wake of such measures. Looking at the many different participants in the fishing industry—from crew, small-boat owners, to households and communities—as well as the diverse sociocultural contexts in which fishing takes place, enables a better understanding of who and what is impacted, how they are impacted, why and with what further consequences, such that communities come to be seen less oppositional to economy, but rather constituted by multiple scalar processes and by economic relations comprising different motivations and behaviors.     

The emergence and effectiveness of the Marine Stewardship Council

This article examines the influence of patterns of emergence on the effectiveness of the Marine Stewardship Council (MSC)—a leading wild-capture fisheries certification program. Looking first at the origins and features of this program, direct effects are examined by describing the adoption of the scheme and the impacts of the fishery assessment process. In assessing broader consequences, the article examines patterns of adoption and certification effects that were not necessarily intended or anticipated. The article concludes that fisheries certification alone is unlikely to arrest the decline of fish stocks, and highlights the need for more research on the intersection of private and public efforts to address overfishing and environmental harm resulting from fishing.     

Effects of the environment on fish juvenile growth in West African stressful estuaries

The knowledge of juvenile fish growth in extreme environmental conditions is a key to the understanding of adaptive responses and to the relevant management of natural populations. The juvenile growth of an extreme euryhaline tilapia species, Sarotherodon melanotheron (Cichlidae), was examined across a salinity gradient (20–118) in several West African estuarine ecosystems. Juveniles were collected during the reproduction period of two consecutive years (2003 and 2004) in six locations in the Saloum (Senegal) and Gambia estuaries. Age and growth were estimated using daily otolith microincrements. For each individual, otolith growth rates showed three different stages (slow, fast, decreasing): around 4 ± 0.5 μm d⁻¹ during the first five days, 9 ± 0.5 μm d⁻¹ during the next 15 days and 4 ± 0.50 μm d⁻¹ at 60 days. Growth modelling and model comparisons were objectively made within an information theory framework using the multi-model inference from five growth models (linear, power, Gompertz, von Bertalanffy, and logistic). The combination of both the model adjustment inspection and the information theory model selection procedure allowed identification of the final set of models, including the less parameterised ones. The estimated growth rates were variable across spatial scales but not across temporal scales (except for one location), following exactly the salinity gradient with growth decrease towards the hypersaline conditions. The salinity gradient was closely related to all measured variables (condition factor, mean age, multi-model absolute growth rate) demonstrating the strong effect of hypersaline environmental conditions—induced by climate changes—on fish populations at an early stage.     

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.     

From community-based to centralised national management—A wrong turning for the governance of the marine protected area in Apo Island,Philippines?

Before the mid-1990s, Apo Island, Philippines, was often described as one of the world's best examples of community-based marine management. This paper studies the less-documented transition of the island during the late 1990s from community-based management to centralised national state management. Extensive interviewing of islanders has revealed deep misgivings about the centralised regime—the Protected Area Management Board (PAMB). PAMB's aim of implementing the National Integrated Protected Areas Systems (NIPAS) Act was initially looked upon favourably by islanders, but it has lost that support because of its exclusion of stakeholders from management and its poor institutional performance. The paper's conclusion is that the implementation of the NIPAS Act highlights the limitations of top-down management, and that there is a need to restore an element of local stakeholder participation in the governance of Apo's marine protected area (MPA). A system of co-management between community and national state actors is essential to ensure the long-term sustainability of Apo's marine resources.     

Quantitative evaluation of the performance of a permit auction system in reducing bycatch of sea turtles in the Hawaii Swordfish longline fishery

Many authors have suggested the use of a cap and trade auction system to help reduce bycatch—the incidental take of species by fishing gear targeting other species—of sea turtles in the Hawaii-based swordfish longline fishery. However, we know of no quantitative evaluations of the method. We present a simple mathematical model to serve as a framework to evaluate bycatch auction systems quantitatively. We conclude that cap and trade auction systems have the potential to reduce sea turtle bycatch by creating a financial incentive, while keeping permit costs down to 2–3% of total revenues. While stringent regulations aimed at conserving endangered sea turtles would still be essential, implementation of an auction for issuing transferable bycatch permits would likely enhance the economic efficiency of the fleet. Sea turtle mortality could be reduced further if a shrinking cap on total turtle mortality was introduced, taking advantage of the incentives for reducing turtle mortality that are introduced by the cap and trade auction system.     

Phytoplankton patchiness: the role of lateral stirring and mixing

Explanations for the patchy distribution of marine phytoplankton are critically reviewed with the focus on the role played by lateral advection and mixing. Generating mechanisms for what is increasingly seen as a ubiquitous feature of the oceans have been sought in biology, behaviour, population dynamics, physics and various combinations thereof. As the mesoscale and sub-mesoscale (1-500 km) contain the “weather” of the ocean—eddies and fronts capable of strong stirring and mixing of any tracers advected by them—the physical circulation in this regime may have a strong role in the generation of patchiness. As a consequence, the focus here is on the ways the turbulent currents at these scales can interact with other processes to produce the complex spatial structures in phytoplankton distributions seen in countless satellite images and cruise data. The mechanisms reviewed include patch formation (KiSS theory), filamentation, Turing and related instabilities, diffusion waves, shear effects and turbulent stirring. Parallel to this is a discussion of observations and of the techniques that have been used to analyse them, particularly spectral analysis. It will be seen that many of the limitations in extant theories stem from a paucity of data and ambiguity in its interpretation. A synthesis of recent developments in sampling, instrumentation, image analysis and turbulence theory is used to suggest alternatives to conventional approaches, to highlight important work in related fields and to motivate new lines of research.     

Community involvement in fisheries management: Experiences in the Gulf of Thailand countries

This paper examines the involvement of coastal communities in fisheries management among the countries of the Gulf of Thailand—Malaysia, Vietnam, Cambodia and Thailand. Initiatives to decentralize management to local governing bodies, to utilize traditional management methods and to engage in community agreements to protect local resources are explored. An examination of recent experiences indicates some movement toward more local involvement in management. However, the study also leads to several suggestions for the future: in Vietnam and Cambodia, there is a need for significant legislation to control fisheries operations and greater clarity of the role of communities in management; in Malaysia, there is an overall need for more support to local fisheries management; and in Thailand, the need is for greater support of local-level enforcement and monitoring activities.     

Benchmarking for fisheries governance

The paper develops a benchmarking framework to improve fisheries governance and promote resilient ecosystems and profitable fisheries. The benchmarking includes five key components: accountability, transparency, incentives, risk assessment and management; and adaptability. Collectively, these factors provide a framework to benchmark and improve fisheries governance. Initial findings from benchmarking in two of Australia's Commonwealth fisheries indicate that the framework provides an important tool to help overcome the underlying causes of unsustainability in capture fisheries—poor and/or ineffective fisheries governance.     

Banking on cod: Exploring economic incentives for recovering Grand Banks and North Sea cod fisheries

Demand for wild (non-farmed) seafood is increasingly reliant upon a natural capital base that is rapidly diminishing. Despite this, studies show that changes in management could increase fisheries’ profitability whilst also protecting fish stocks. This premise is approached by looking specifically at north Atlantic cod—a species that has collapsed in many regions but with evidence to suggest it has the biological potential to recover, despite concerns about altered ecological niches and changing oceanic conditions. The key issue is how the potential economic benefits of cod recovery can provide the fishing sector with incentives for change and how these can be translated into a case for investment, given the financially difficult transition period that currently inhibits fisheries reform. In examining this, the paper concludes that repayable financial investments and rights-based management, tailored to local situations, are required to create resilient and diverse ecosystems that underpin improved seafood economies. It is essential, however, that management and policy solutions adopt a holistic ecosystem-based management approach.     

Conflicts at sea between artisanal and industrial fishers: Inter-sectoral interactions and dispute resolution in Senegal

Conflicts between artisanal and industrial fishermen—targeting increasingly scarce resources in Senegal—are posing a serious threat to human security and are only symbolically addressed by the country's fisheries governance regime. Severely outmatched in terms of political influence and size, artisanal fishermen are more vulnerable to the fallout of conflicts at sea. The loss of fishing materials threatens the livelihoods of fishermen and their families; collisions and violence between members of the two sectors often result in injury and death. This study examines at-sea interactions between Senegal's artisanal and industrial sectors and the formal and informal mechanisms in place for managing them. Conflictive interactions are found to co-exist alongside cooperative ones and both emerge in response to changes in marine resource abundance and management. Formal systems in place to mediate at-sea conflicts are ineffective and seldom used by artisanal fishermen, who either accept their losses, attempt to informally resolve conflicts with industrial actors or resort to violence.     

Evaluating the NOAA Coastal and Marine Ecological Classification Standard in estuarine systems: A Columbia River Estuary case study

A common first step in conservation planning and resource management is to identify and classify habitat types, and this has led to a proliferation of habitat classification systems. Ideally, classifications should be scientifically and conceptually rigorous, with broad applicability across spatial and temporal scales. Successful systems will also be flexible and adaptable, with a framework and supporting lexicon accessible to users from a variety of disciplines and locations. A new, continental-scale classification system for coastal and marine habitats—the Coastal and Marine Ecological Classification Standard (CMECS)—is currently being developed for North America by NatureServe and the National Oceanic and Atmospheric Administration (NOAA). CMECS is a nested, hierarchical framework that applies a uniform set of rules and terminology across multiple habitat scales using a combination of oceanographic (e.g. salinity, temperature), physiographic (e.g. depth, substratum), and biological (e.g. community type) criteria. Estuaries are arguably the most difficult marine environments to classify due to large spatio-temporal variability resulting in rapidly shifting benthic and water column conditions. We simultaneously collected data at eleven subtidal sites in the Columbia River Estuary (CRE) in fall 2004 to evaluate whether the estuarine component of CMECS could adequately classify habitats across several scales for representative sites within the estuary spanning a range of conditions. Using outputs from an acoustic Doppler current profiler (ADCP), CTD (conductivity, temperature, depth) sensor, and PONAR (benthic dredge) we concluded that the CMECS hierarchy provided a spatially explicit framework in which to integrate multiple parameters to define macro-habitats at the 100 m² to >1000 m² scales, or across several tiers of the CMECS system. The classification's strengths lie in its nested, hierarchical structure and in the development of a standardized, yet flexible classification lexicon. The application of the CMECS to other estuaries in North America should therefore identify similar habitat types at similar scales as we identified in the CRE. We also suggest that the CMECS could be improved by refining classification thresholds to better reflect ecological processes, by direct integration of temporal variability, and by more explicitly linking physical and biological processes with habitat patterns.     

Institutional challenges for resolving conflicts between fisheries and endangered species conservation

Successful species conservation typically results in conflicts between wildlife protection and economic uses of natural resources as in fisheries and aquaculture. This article shows why managing these conflicts require a more comprehensive approach than currently pursued by endangered species conservation programmes. Against the background of several case studies focussing on wildlife conflicts in European waters this article derives two challenges for institutional response: First, the question of mandate—which societal actor initiates management related processes that require multiple actors to collaborate? Second, how can continuous processes of collaboration be sustained?     

Assessing the feasibility of ecosystem-based fisheries management in tropical contexts

This analysis documents the reasons for emerging interest in ecosystem-based fisheries management (EBFM) and relates this management model to others. It highlights the central challenges to EBFM in the tropical context and examines an ongoing project, Fisheries Improved for Sustainable Harvest (FISH), in the Philippines—likely the first EBFM project in the tropics. The Philippine legal and institutional context provides major governance challenges to EBFM, especially as management is scaled up. A monitoring framework with process and output criteria is applied to FISH to establish progress to date. Major institutional and governance challenges for EBFM will require monitoring, evaluation, and adaptation.