Moving beyond a top-down fisheries management approach in the northwestern Mediterranean: Some lessons from the Philippines

The management of fisheries resources in the northwestern Mediterranean is traditionally centralized and developed within the framework of coastal states and European Union common policies. In general, it has not been sufficiently effective in reversing the declining situation of fisheries resources and fishers in this region. This paper discusses the feasibility of moving away from a top-down approach in fisheries management towards a more participative and convergent mode of governance in the region. More specifically, the study focuses on MPAs as a fisheries management tool and evaluates their current establishment and management system in the French Mediterranean as a case study for the region. A brief review of the experiences on fisheries and MPA management in the Philippines is also presented to obtain insights on bottom-up and collaborative management approaches. Finally, possible opportunities for adopting a more decentralized and coordinated approach in fisheries management within the French socio-political system, and possibly in the northwestern Mediterranean region, are discussed. These include the existence of fishing community organizations in the region, such as the prud'homies in France and cofradias in Spain, starting with management strategies that are simpler to enforce and more acceptable to direct users, e.g., fishery reserves, and exploring co-management arrangements to manage fisheries at ecologically meaningful but operationally manageable scales as has been proposed by some development organizations. However, effective changes in the system would require major national policy and institutional reforms, social preparation and organizational strengthening which would take time and resources.     

Institutions and management of fishing resources: The governance of the Galician model

Institutional analysis is among the most significant research programs in the economics of fisheries management, and it increases our understanding of the relationships between the institutional framework and the fishing sector. Galicia is one of the most important fishing regions in the European Union, and this paper analyses the Galician fishing sector from a new institutional economics approach. The paper studies several topics that characterise the relationship between institutional rules and fisheries management in Galicia. As a result, we demonstrate new institutional findings on fishery governance through the study of the recent Galician experience.     

Property relations and the co-management of small-scale fisheries in Costa Rica: Lessons from Marine Areas for Responsible Fishing in the Gulf of Nicoya

Marine fisheries in Costa Rica have become characterized by overexploitation, ineffective centralized management and increased conflict among fishing sectors. Despite high economic and socio-cultural importance of small-scale fisheries, no formal mechanisms existed until recently to facilitate the participation of fishers in management. Marine Areas for Responsible Fishing (Áreas Marinas para la Pesca Responsable, AMPR) were legally recognized in 2009 as a co-management approach, enabling the designation of spatial management areas to be implemented collaboratively by artisanal fishers and government agencies. In this paper, we examine property and access relations shaping this emerging participatory management model using case studies primarily from the Gulf of Nicoya region. The policy demonstrably improves upon some aspects of management, for instance, by allowing artisanal fishers to determine gear restrictions within designated areas. However, the model lacks other attributes of more successful co-management scenarios, particularly exclusive access. The fugitive nature of resources further complicates property relations over these fisheries. The cases explored also illustrate broader institutional and systemic issues that preclude effective participatory management. Lessons from the region are used to propose significant shifts to the management of small-scale fisheries in Costa Rica.     

Responses of the fishing sector to transitional constraints: From reactive to proactive change,Yucatan fisheries in Mexico

Most fisheries management studies have concentrated on understanding resource dynamics and have paid less attention to understanding the dynamics of those who use the resources. This situation limits the knowledge about the fisheries system as a whole and specifically about the viability of management schemes. It is vital to understand how the actors within the fishing sector (fishing firm owners/managers, fishers, fisheries managers, and traders) may respond to changes in fishing resources trends, market dynamics, and fisheries policies before they are implemented. These issues are explored in this paper by applying a longitudinal analysis of the Yucatan Mexico's fishing industry. The analysis is presented within the framework of the theory of change and coping strategies. The study primarily involved interviews during 2008 with the main owners of companies in the fishing industry and with fisheries managers and other stakeholders. Time-series catch data on the main fishing resources are also reviewed to evaluate changes across three historical periods and describe how the actors have perceived and responded to those changes. Given conditions of uncertainty in resource availability, changes in market demand and changes in institutional arrangements, the viability of traditional business and resource management practices are discussed. The analysis presents different kind of triggers that have modified the conditions of the fishing sector and had had impacts on the socio-economic–ecological system in which fisheries are embedded. The need for adaptive strategies in the whole chain of the fisheries business and resource management is stressed, given the current changes and conditions of fisheries. The discussion states a series of actions that could improve the relationships between business practices and fisheries management.     

Coastal management challenges from a community perspective: The problem of ‘stealth privatization’ in a Canadian fishery

Intertidal clam fisheries seem ideal candidates for the devolution of management authority from government to local stakeholders. In St. Mary's Bay, Nova Scotia, a private firm recently applied for a 10-year renewal of a large (1,627 ha) lease for quahog clam aquaculture. This case study examines the challenges of implementing community-based natural resource management (CBNRM) in rural fisheries within a broad integrated coastal management (ICM) institutional environment that favours corporate stakeholders. The challenges facing clam harvesters in rural Digby Neck, Nova Scotia arise from poor communication and coordination within government and between government and communities, as well as higher-level policy conflicts. The most important challenge arises from ‘stealth privatization’ of clam beaches. A single firm was granted rights of first refusal to depurate all clams harvested from closed (polluted) beaches in the region, resulting in the de facto privatization of all (polluted and unpolluted) clam beaches. Experiences in other parts of Canada suggest there may be community-based governance approaches that avoid the pitfalls associated with corporate management of clam beaches. New thinking is required about how to moderate the ‘privatization paradigm’ so prevalent within senior levels of government in order to ensure environmental and social sustainability in rural fishing communities.     

Constraints on community participation in salmon fisheries management in Northwest Russia

Salmon fishing used to be the primary source of income in many rural areas of Arkhangelsk oblast in northwest Russia. People who settled in the area received a name Pomory, from Russian po moriu, meaning by sea, because their subsistence activities became marine fishing and hunting and seafaring. Local fisheries have undergone significant changes as post-Soviet Russia embraced the market economy and the state introduced fishing concessions. The current Russian law only allows fishing for salmon through officially registered recreational or commercial fisheries. Both these options are often either unavailable or unaffordable to rural dwellers, which leaves them with limited or no legal access to their traditional salmon fisheries. There has been a growing concern for protecting communities’ fishing rights among wider society in Arkhangelsk oblast. City activists promoted Pomory identity and appealed to the Russian government to grant Pomory an indigenous status to secure their access to fisheries. Although Pomor activism did not reach most of its proclaimed goals, it has contributed to promoting the image of Arkhangelsk oblast as a homeland to Pomor fishing. This image has played an important part in what Arkhangelsk authorities have called socially-oriented fisheries management. Officials have made good attempts to better accommodate rural communities’ access to fishing resources. Yet, these attempts have failed to include fishermen as active participants in the process. This paper looks at constraints on community participation in fisheries management in Russia. It considers both historical and contemporary reasons for the low participation of local community in fisheries management.     

A right to fish for a living? The case for coastal fishing people's determination of access and participation

Fisheries management systems everywhere tend to be dominated by the proprietary claims of nation states. These claims are embodied in a number of international agreements such as the United Nations’ Convention on the Law of the Sea, which accords rights to nation-states on the basis of adjacency and historic use. In this paper, we present results from research in Nova Scotia, Canada, to demonstrate that small boat fishing families in that region have been continuously fishing the grounds adjacent to their communities for many generations, but must now fish those areas on the basis of a state-granted ‘privilege’ rather than a secure right. In this paper we argue that the principles of adjacency and historic use should apply to individuals and fishing families and that states should move towards a more community-determined approach to fisheries management. The lobster fishery of Northeastern Nova Scotia provides a particularly compelling example of how this type of change in management policy could be successfully accomplished.     

When regulation fails: vendace fishery in the Gulf of Bothnia

The fishing of vendace (Coregonus albula), in the Gulf of Bothnia, is a good illustration of the presumption that institutional arrangements that are too inflexible to cope with changing ecological conditions, are unlikely to prosper. Although the vendace fishing is regulated by the State, catches have decreased dramatically, and there is a considerable fear that the resource is about to be depleted. This article discusses how the present institutional arrangement affects collective action and why political solutions seem to have failed. The vendace case illustrates that even a rather limited resource concentrated in a limited area is unlikely to be sustainably managed by top-down regulation performed by the State. It is concluded that changes in management practices that are obvious from the perspective of ecosystem management might turn out to be unfeasible, given the multi-stakeholder character of the management system. From this article it can also be concluded that resilience theory and experiences from long-enduring CPRs correspond very well with each other. Finally, it is discussed whether it is meaningful to talk about institutional, or managerial, resilience uncoupled from the ecosystem it is supposed to be managed. If an ecosystem, like the vendace, that is subject to human activity loses its resilience this would automatically indicate the socio-economic system, as manifested in management practices, has already lost its ability to adapt. Thus, social and ecological resilience are communicating vessels but not perhaps as the concept might be understood according to a popular call for increased institutional resilience in natural resource management.     

Transformation of South African industrial fisheries

South African industrial fisheries have been dominated by a few large companies. The Marine Living Resources Act (MLRA) of 1998 emphasised that equity was to be achieved by redistribution through co-operative strategies among stakeholders. Instead, the reallocation of fishing rights has been treated as a resource management issue rather than a socio-economic challenge. Further, the institutional structures for transformation have been inappropriate. This paper investigates the institutional dynamics and discrepancies associated with transformation and concludes that the process became locked in a path dependency, which will eventually undermine the intentions of transformation.     

Fishing selectivity as an instrument to reach management objectives in an ecosystem approach to fisheries

With the development of the ecosystem approach to fisheries, improving fishing selectivity has increasingly been put forward as an objective for management. The aim of this paper is to clarify the limits of fishing selectivity and its use in fisheries management. Fishing selectivity would be better apprehended if restricted to the catching process only, not to the utilisation that is made of the catch once onboard, which falls under catch utilisation. Confusion would be further limited if fishing selectivity is restricted to the fishing operation scale, while exploitation pattern, i.e. the distribution of fishing mortality at the population or community level, applies to larger scales. Fishing selectively is minimizing bycatch – catching primarily the fishing trip targets. Since the ecological consequences of maximising the target catch relative to bycatch remain unknown at integrated scales, fishing selectivity cannot be used as an objective in itself. However, its small scale, high manageability and good understanding make it a convenient instrument to reach management objectives at large scales. Selectivity can serve to manage what is extracted from the ecosystem and thus what can be used, and/or to manage what is left in the ecosystem and how fishing impacts it. Different factors affect fishing selectivity, catch utilisation and exploitation patterns, some of them are manageable and thus can be used to move towards these objectives. Management tools are diverse, but need to be integrated to meet large-scale objectives. The complexity of dealing with large scales incurs a need to develop the available knowledge on exploitation patterns and catch utilisation to be able to adequately manage and monitor progress toward selectivity-related objectives.     

Taiwan's response to international fisheries management after 2005 as influenced by ICCAT and fishers' perception

It is widely recognized that fishing states are obliged to exercise flag state responsibility over their vessels. In an attempt to become a responsible fishing actor, Taiwan has endeavored to manage its distant water fishing fleet in accordance with international fisheries management. However, the long-standing problems of illegal, unreported and unregulated (IUU) fishing, fish laundering, and fishing overcapacity, which remained unsolved during the 1990s and early 2000s, brought its management capability into doubt. Failure to address these problems undermined the credibility of all management measures and ultimately resulted in a recommendation adopted by International Commission for the Conservation of the Atlantic Tunas (ICCAT) in 2005. This recommendation significantly affected Taiwan's distant water fishing policy. This paper examines how Taiwan assimilated this outside force into its fishing policy as a new response to international fisheries management and how fishers perceived this response. It shows that Taiwan's efforts in controlling distant water fisheries marked a big change, specifically manifest in three noticeable actions - reducing excessive bigeye-targeted efforts, deterring IUU fishing, and strengthening fisheries management. The study advises that management of small tuna vessels be effectively exercised and recommends future actions on providing subsidies for fishers to partially offset costs incurred by rule compliance, streamlining their administrative work, enhancing communication with them, putting more enforcement and meaningful penalties in place. Finally, the study indicates the existence of an interaction in the international fisheries management scheme, potentially favoring Taiwan to bargain for fishing rights and a favorable status in the participation of regional fisheries management organizations (RFMOs) in the future if it continues to exercise effective control of distant water fisheries.     

The Icelandic debate on the case for a fishing fee: a non-technical introduction

Research by J.D. Sachs and A.M. Warner, indicates that resource-rich countries are less successful in terms of economic growth than are resource-poor countries. The question of what measures Icelanders need to take to prevent their fishery wealth from limiting economic growth is posed. The main body of the essay discusses arguments for a fishing fee. The principal arguments for a fishing fee are listed. One type of argument concerns flexibility, with a view to possibly introducing other forms of management or altering the distribution of profit in the future. Another type of argument concerns equity and fairness, contending that having a fishing fee makes it easier to ensure that the entire nation enjoys the benefit of the resource. A third type of argument is connected to risk-management, maintaining that, if properly arranged, a fishing fee would make it possible to offer vessel operators an indirect insurance policy which otherwise would not be available to them. The fourth type of argument concerns counter-cyclical policy and the problem of co-habitation of the fishery industry and other export industries and refers to the possibility of wage earners and/or taxpayers being forced (or tempted) to apply general policy instruments to secure a portion of the fishery rent. The general measures available to obtain a piece of the fishery rent share a common failing: their use unavoidably increases costs for other sectors of industry and thus limits possibilities for growth in those sectors and links their performance to fisheries performance. Then there are arguments for neutrality, based on the idea that the so-called resource rent taxes should not affect the use of the factors of production. Finally, there are economic growth arguments, which can be linked to theories of rent-seeking and Dutch disease.     

Sustaining small-scale fisheries with periodically harvested marine reserves

Spatial marine closures are widely employed and advocated for marine resource management and conservation. Temporal, non-permanent, rotational or periodically harvested area closures have been employed across the Indo-Pacific for centuries and are a common measure within contemporary community-based and co-management frameworks. Although prior evidence suggests that periodic closures may confer fisheries benefits for some taxa or in certain conditions, there is little evidence that they are equally effective for the sustainable management of the many types of small-scale fisheries important in the Indo-Pacific. Case studies of periodic closures are reviewed to highlight the variations in target species, harvesting periodicity and fishing pressure that will influence the fisheries management effectiveness of this tool. Fisheries management benefits are observed for short-lived, fast-growing taxa or for a range of taxa in low fishing pressure situations. Stocks declines are observed for long-lived taxa or for a range of taxa if harvesting is intense. It is argued that community-based and co-management policy and action must better account for these factors when promoting and implementing periodic closures for medium- to long-term fisheries management or conservation goals.     

The effectiveness of community-based governance of small-scale fisheries,Ngazidja island,Comoros

Conventional top-down, exogenous approaches to fisheries management have been ineffective in more traditional and small-scale fisheries. Yet, there remains little understanding of the effectiveness of alternative approaches. This case-study of small-scale fisheries in the Comoros examines how effective local fishing associations are at managing common fisheries resources, and provides some understanding of the underlying characteristics of effectiveness. Emphasis is placed on assessing governance effectiveness according to characteristics appropriate within the local context, and on suggesting ways to enhance local institutional strength and capacity to manage resources. Qualitative methods were used to collect data on local governance structures and management tools, fishers’ knowledge and beliefs, and perceptions of the status of fisheries resources in four major fishing villages on the island of Ngazidja. Results show that fisheries management in the Comoros is informally shared between the State fisheries department, a national fishing syndicate, and village fishing associations. Village fishing associations play an active role in fisheries management by collectively designing, monitoring, and enforcing local regulations. Compliance with local regulations is high, primarily due to participatory decision-making, community-monitoring, and strong feelings of solidarity among fishers. Perceptions of the benefits of these regulations are also high. This suggests that by working within these pre-established informal management systems, collective governance of common pool resources can be achieved within communities, and feelings of empowerment and shared responsibility among resource users can lead to effective management practices.     

Upgrading and exploitation in the fishing industry: Contributions of value chain analysis

This article presents a framework for fisheries sector analysis based on the literatures on global value chains (GVCs) and global production networks (GPNs). A value chain approach offers an alternative to focusing primarily on policy as an explanatory variable, by bringing into focus relations among buyers, sellers and other stakeholders as well as their institutional context. After outlining the utility of this approach, the article identifies three questions at the forefront of contemporary debates on the dynamics of GVCs and GPNs. Namely: (1) How institutional context affects distributional and regulatory outcomes; (2) The conditions under which particular institutions that limit or regulate market forces are either productive or perverse; and (3) Why and how particular markets are constituted in the ways that they are. The article then showcases some of the central findings from the case studies brought together in this thematic issue, demonstrating how they contribute to current analytic debates surrounding value chains and core substantive problems facing both fisheries and those engaged in the fishing industry.     

Net economic effects of achieving maximum economic yield in fisheries

Improving the economic performance of fisheries is becoming increasingly important in fisheries management, and in some cases, maximum economic yield (MEY) is set as a key management target. However, recent critics of MEY as a management target have argued that a decline in the level of fishing activity necessary to achieve the target will result in a subsequent loss of economic activity elsewhere in the economy and, potentially, a net loss to society. In this paper, an input–output framework is used to estimate the net economic effects of achieving MEY in several Australian fisheries for which there is information on their short- and long-term performances when moving towards MEY. While overall losses were found in the short term, achieving MEY was found to result in a net economic benefit to society in the longer term. Local coastal communities in particular were found to benefit, although some losses were incurred elsewhere in the economy.     

Size matters: Short term loss and long term gain in a size-selective fishery

The maximum sustainable yield concept (MSY) and the ecosystem approach to fisheries management (EAFM) have been recently adopted by the European Commission with the objective to achieve, over the long term, the highest possible sustainable yield from a given exploited stock. In this context, a fishing mortality MSY reference level (i.e., F_MSY) should be defined, taking into account recruitment, growth and natural mortality under current or recent ecosystem conditions. Thus, F_MSY is used as a generic term for a robust estimate of a fishing mortality level that is associated with high sustainable yield in the long term, assuming the current harvesting regime in terms of size selectivity. In this study, using the Eastern Baltic cod as an example, we challenge this rather simplified view showing that by using a different harvest selectivity and thus changing the size range of harvested cod, it is possible to largely increase the yield and revenue from the fishery compared to the fishing mortality stipulated in the management plan (i.e., F_MSY), while assuring sustainable high yield in the long term. Thus, implementing the MSY concept in terms of fishing mortality but neglecting selective harvesting effects will not achieve high long term sustainable yield for Eastern Baltic cod. The combination of size selective harvesting and economic reasoning may offer an important tool for the management of marine resources by potentially providing a common currency for the different stakeholders and offer guidance to achieve long term sustainability and human well-being. This would represent the natural step forward in the implementation of EAFM and MSY concepts.     

A communicative turnaround: Shifting the burden of proof in European fisheries governance

Current and prospective changes in European fisheries governance suggest not only a “communicative turn” but a complete turnaround in the relationships between government, science, and the fishing industry. At the heart of these changes are the so-called Regional Advisory Councils (RACs) and the idea of partially replacing the burden of proof on the resource users (fishing industry). This change entails new forms of interaction between fishers’ representatives, other stakeholders (e.g. NGOs), policy-makers and scientists. By drawing on experiences from the Baltic Sea RAC, the analysis focuses on two aspects of fisheries governance: institutional design and the process of negotiation and decision-making. It is concluded that to allow for a partial shift in the burden of proof, stakeholder organisations such as RACs need to adapt both institutionally as well as process-wise to enable a more constructive and responsible fisheries governance system.     

Losing ground: The marginalization of the St. Lawrence eel Fisheries in Québec,Canada

The world׳s eel fisheries are in a state of crisis. While an increasing number of studies have documented the biophysical dynamics of the decrease in eel populations in Canada and around the world, studies documenting fishing practices, fisheries management, and the impact of eel declines on the livelihoods of fishermen are still rare. This paper aims to contribute to this discussion by examining the American eel (Anguilla rostrata) fishery in the St. Lawrence River Estuary, positioning it within larger historical, economic, and socio-environmental contexts. More particularly, it explores the issues these fishermen face as a consequence of the declining eel population, changing management practices, global trends in eel commercialization, and initiatives taken to promote eel fishing and the landscape that surrounds it as an important component of natural and cultural heritage. It is argued that these changes, many of which have been amplified by neoliberal policy shifts, have contributed to the marginalization of eel fishers and are making their future increasingly uncertain.     

The elasmobranch fisheries of the Azores

In the Northeast Atlantic, elasmobranchs are a common bycatch in many fisheries, including demersal trawls, longlines, or gillnets and many countries do not have regulations or any control over the amount taken. In the Mid Atlantic, the Azores EEZ (Exclusive Economic Zone), small-scale fishing operations, artisanal and hook-and-line fishing methods are responsible for part of local total landed elasmobranch biomass, although some species are specifically focused and severely harvested by international large-scale fleets. This work provides a review and analysis of the commercial elasmobranch fisheries in the Azores EEZ, and its evolution over the last two decades, highlighting management priorities, taking into account the Northeast Atlantic elasmobranch fisheries status. In the Mid-Atlantic, elasmobranch fisheries mainly target 4 species, that are usually landed as bycatch: the tope shark (Galeorhinus galeus) and the thornback ray (Raja clavata), captured mainly by local demersal artisanal fisheries, the blue shark (Prionace glauca) and the shortfin mako shark (Isurus oxyrinchus) captured by a more industrialised fleet, including those from foreign nations. Considering elasmobranchs life history traits and fishery history, caution is advised in the development of a management strategy focusing on these species, considering the Northeast Atlantic context and regional, local and national interests.