Facing limits in oceanic fisheries

Research from the United Nations Food and Agriculture Organization and fishery scientists indicates that the wild catch of fish and other marine life from the oceans will not be able to increase significantly in the future, except through rehabilitation and better management of stocks. Despite the limited potential for bigger catches, fishing fleets have expanded rapidly in recent decades under government subsidies. Fishers now have approximately twice the capacity necessary to make the annual catch from the oceans. The juxtaposition of natural limits and overinvestment has created a crisis situation for the world's fishers, fishing communities, and traditional fishing cultures. Part I of this article (Natural Resources Forum, November 1994) discussed policy responses at the national and international level. How policy makers respond to the overextension of the marine fishing industry will determine the extent of job loss, hunger and dislocation that will result. Part II examines the social aspects of the world's fishing industry, including the demography of fishers, utilization of fisheries products, the relative social contribution of aquaculture and policy responses to overcapacity. Policy makers could enhance the social benefits of marine fisheries – both jobs and food – through a combination of government oversight and community-based management .     

A multi-criteria assessment of fishing gear impacts in demersal fisheries

Fishing gears have multiple impacts on the marine environment, and policies to reduce these impacts through modifying fishing gears are becoming common place. Different modifications result in different changes in the set of environmental impacts, and imply different sets of costs and benefits for different stakeholder groups. In this study, the analytic hierarchy process (AHP) is used to quantify the relative importance of the environmental impacts of fishing to different stakeholder groups. Forty eight individuals representing six different stakeholder groups (ecologists, biologists, economists, gear technologists, fishers and fisheries managers) were surveyed. As expected, fishers and gear technologists placed substantially greater importance on reducing discarding of commercial fish species than on habitat damage. Priorities of other stakeholder groups varied, but all placed greater priority on habitats than the commercial sector. The results suggest that management aimed at reducing environmental impacts of fishing broader than just discarding is appropriate, but such moves are likely to be opposed by the fishing industry. The derived weights also have a direct application to fisheries management, as they allow otherwise non-commensurate impacts to be aggregated into an overall impact to compare environmental benefits from alternative modifications of fishing gear.     

Consolidation in an Individual Transferable Quota Regime: Lessons from New Zealand, 1986–1999

Market-based approaches to environmental regulation (such as tradable permits or transferable quotas) are frequently offered as innovative solutions to many environmental problems. Globally, one of the most well-established forms of this approach is individual transferable quotas (or ITQs) in fisheries management. Within the natural resource management community, there is considerable debate over the effects ITQs have on the fishing industry and fisher behavior although this approach is not well-established in the United States. The previously imposed moratorium on ITQs in the United States has expired and the 2006 reauthorization of the Magnuson-Stevens Act explicitly provides for limited access privileges (LAPs). A variety of fishers, regulators, and conservation organizations are enthusiastically seeking to introduce ITQ management. With debate over whether and how ITQs should be used in American fisheries reinvigorated, it is timely to examine the evidence on the social and economic effects of ITQs in other nations’ fisheries. After briefly summarizing the debate on ITQs, we examine the case of New Zealand, one of the earliest and longest-lived ITQ-based fisheries regimes. We use multiple data sources and methods to analyze the extent to which industry consolidation and aggregation has occurred, including surveys of industry participants, expert interviews, reviews of academic reports and analyses, analysis of trade publications, and direct analysis of quota ownership patterns. This analysis shows a more complex outcome than recent debates in the ITQ literature would predict. These findings suggest that policy makers considering ITQs can learn from the experiences of other countries related to key issues such as quota allocation, aggregation limits, transferability, cost recovery, and resource sustainability when designing ITQ and other LAP systems. It is also important to explicitly identify economic and social objectives and then carefully design ITQ regimes to meet these objectives.     

Social Capital and Fisheries Management: The Case of Chilika Lake in India

This article shows how social capital impacts fisheries management at the local level in Chilika Lake, located in the state of Orissa in India. In Chilika, the different fishing groups established norms and “rules of the game” including, but not limited to, spatial limits that determine who can fish and in what areas, temporal restrictions about when and for how long people may fish, gear constraints about what harvesting gear may be used by each group, and physical controls on size and other characteristics of fish that may be harvested. A survey of the members of fishing groups has shown that the bonding social capital is strong within the Chilika fishing groups. Bonding and bridging social capital keeps the fishers together in times of resource scarcity, checks violations of community rules and sanctions, and strengthens the community fisheries management. In contrast, linking social capital in Chilika appears to be weak, as is evident from the lack of trust in external agencies, seeking the help of formal institutions for legal support, and increasing conflicts. Trust and cooperation among fishers is crucial in helping to build the social capital. A social capital perspective on fisheries governance suggests that there should be a rethinking of priorities and funding mechanisms, from “top-down” fisheries management towards “co-management” with a focus on engendering rights and responsibilities for fishers and their communities.     

Fishing Farmers or Farming Fishers? Fishing Typology of Inland Small-Scale Fishing Households and Fisheries Management in Singkarak Lake, West Sumatra, Indonesia

Technical and socio-economic characteristics are known to determine different types of fishers and their livelihood strategies. Faced with declining fish and water resources, small-scale fisheries engage into transformations in livelihood and fishing practices. The paper is an attempt to understand these changes and their socio-economic patterns, in the case of Singkarak Lake in West Sumatra, Indonesia. Based upon the hypothesis that riparian communities have diverse, complex yet structured and dynamic livelihood systems, the paper’s main objective is to study, document and model the actual diversity in livelihood, practices and performance of inland small-scale fisheries along the Singkarak Lake, to picture how households are adapted to the situation, and propose an updated, workable model (typology) of those for policy. Principal component analysis and cluster analysis were used to develop a typology of fishing households. The results show that small-scale fishers can be classified into different types characterized by distinct livelihood strategies. Three household types are identified, namely “farming fishers” households (type I, 30 %), “fishing farmers” households (type II, 30 %), and “mainly fishers” households (type III, 40 %). There are significant differences among these groups in the number of boats owned, annual fishing income, agriculture income and farming experience. Type I consists of farming fishers, well equipped, with high fishing costs and income, yet with the lowest return on fishing assets. They are also landowners with farming income, showing the lowest return on land capital. Type II includes poor fishing farmers, landowners with higher farming income; they show the highest return on land asset. They have less fishing equipment, costs and income. Type III (mainly fishers) consists of poorer, younger fishers, with highest return on fishing assets and on fishing costs. They have little land, low farming income, and diversified livelihood sources. The nature of their livelihood strategies is discussed for each identified group. This helps to understand the complexity and diversity of small-scale fishers, particularly in the study area which is still poorly known. This paper concludes with policy implication and possible management initiatives for environmentally prudent policy aiming at improvement of fishers’ livelihood.     

Fishing Effort and Catch Composition of Urban Market and Rural Villages in Brazilian Amazon

The management of small-scale freshwater fisheries in Amazon has been based usually on surveys of urban markets, while fisheries of rural villages have gone unnoticed. We compared the fishing characteristics (catch, effort and selectivity) between an urban market and five small villages in the Lower Tocantins River (Brazilian Amazon), downstream from a large reservoir. We recorded 86 and 601 fish landings in the urban market and villages, respectively, using the same methodology. The urban fishers showed higher catch per unit of effort, higher amount of ice (related to a higher fishing effort, as ice is used to store fish catches) and larger crew size per fishing trip, but village fishers had a higher estimated annual fish production. Conversely, urban and village fishers used similar fishing gear (gillnets) and the main fish species caught were the same. However, village fishers showed more diverse strategies regarding gear, habitats and fish caught. Therefore, although it underestimated the total amount of fish caught in the Lower Tocantins River region, the data from the urban market could be a reliable indicator of main fish species exploited and fishing gear used by village fishers. Monitoring and management should consider the differences and similarities between urban and rural fisheries, in Amazon and in other tropical regions.     

The decline of a regional fishing nation: The case of Ghana and West Africa

Inadequate trade policies, globalization of the fishing industry, dominance of Europe's distant water fleets, declarations of exclusive economic zones (EEZs) by neighbouring West African nations, overfishing and a lack of good governance contributed to the decline of Ghana as a regional fishing nation, a position it had held since the 18^th century. The prohibitive cost of access arrangements limited Ghana's access to distant waters. The country's marine environments have been impacted by overexploitation of stocks and the use of destructive methods. Subsistence fishing has become the sole means of survival for many fishers. The decline of the fishing sector has limited the country's ability to meet domestic demand and threatened the economic and food security of many Ghanaians. The article traces the early history of Ghana's fisheries, their gradual decline during the last four decades, and outlines recommendations for policy changes to address the situation and steer the nation on a course towards sustainable fisheries.     

Toward Adaptive Management: The Impacts of Different Management Strategies on Fish Stocks and Fisheries in a Large Regulated Lake

We applied the adaptive management approach to analyze the demand and feasibility of adaptive management of fish stocks in a large regulated lake, Oulujärvi, in northern Finland. The process consisted of four phases: (1) analysis of the current state of the fisheries system (fishers, related markets and industry, fisheries researches and authorities, related organizations, etc.); (2) analysis of the objectives of different stakeholders; (3) the composition of alternative management strategies and assessment of their impacts; and (4) recommendations for future management. We used catch statistics from the period 1973–1995 to analyze fish stocks and fishing. Fish species involved were brown trout (Salmo trutta L.), whitefish [Coregonus lavaretus (L.) sl.], vendace (Coregonus albula L.); and pikeperch (Stizostedion lucioperca L.). Questionnaires and interviews were applied to ascertain the opinions of different groups of fishermen. Several models and cost–benefit analysis were used to assess the ecological, economic, and social impacts of three alternative management strategies. The results emphasize that when determining stocking levels and fishing regulations, the system should be considered as a whole, and impacts on major fish species and different groups of fishermen should be assessed. The stocking policy and fishing regulations should also be flexible to accommodate changing biotic and societal conditions. The key questions in applying the adaptive management process in Oulujärvi fisheries are how to determine clear objectives for fisheries management, find a fisheries management structure that provides workable interactions between different stakeholders, and arrange cost-effective monitoring. The lessons learned from the Oulujärvi experience and recommendations for fisheries management are relevant to other lakes with conflicting objectives of different stakeholders.     

Conflict and collective action in Tonle Sap fisheries: adapting governance to support community livelihoods

This paper presents the results of action research conducted from 2009 to 2015 on the dynamics of resource conflict concerning fisheries and livelihoods in the Tonle Sap Lake, as well as the institutional context and strategies for institutional adaptation to address such conflicts equitably. Over the past 15 years, Cambodia has made significant advances in building the policy framework, regulations and institutions to support community‐based fisheries management and increase the sector's contribution to the rural economy. However, fundamental challenges of increased resource conflict and loss of livelihoods by the most vulnerable remain. Key sources of conflict include destructive and illegal fishing practices, clearing of flooded forests, competing uses of land and water, and overlapping resource claims. Addressing these challenges requires collective action by all key actors: local fishers, the private sector, civil society, development partners, and government from the local to the national level. We identify and elaborate upon four governance priorities: (1) clarify roles and responsibilities in fisheries management; (2) link civil society and government efforts in law enforcement; (3) strengthen partnerships for livelihoods development; and (4) integrate fisheries management into decentralised development planning.     

A participatory decision making framework for artisanal fisheries collaborative governance: Insights from management committees in Chile

Fisheries management is increasingly transitioning towards collaborative governance. Collaborative systems depend on stakeholders’ capacity to design and implement legitimate and scientifically robust management plans within collective action arenas. Here we propose that collaborative governance outcomes, in fisheries management, will benefit from using structured participatory decision making frameworks that enhance deliberative thinking among stakeholders. We tested our approach in the artisanal fishery of Chile, an important producer of marine resources. Recently in 2013, Chile made important changes to fisheries policies by creating multi-sectorial management committees to manage de facto open access fishing areas. We applied a structured decision making framework to inform the restructuring of a management plan within a committee. As a result, we identified goals,objectives and indicators, including social, economic, biological and ecological dimensions; we explored tradeoffs, assessing the relative importance of the objectives; finally, we created scenarios and prioritized alternatives, reflecting on the interplay between self-regulation and government control. Members of the management committee were able to rationalize the different steps of the framework and identify ways forward which highlighted the importance of self-regulation in comparison to central authorities’ control. We concluded that structured decision making promotes spaces for rational analysis of alternatives costs and benefits. Promoting deliberative thinking in fisheries management can improve equity, legitimacy and sustainability of collaborative governance.     

Lessons from Integrating Fishers of Arapaima in Small-Scale Fisheries Management at the Mamirauá Reserve,Amazon

Fishers and small-scale fisheries worldwide have been marginalized historically. Now it is clear that integrating fishers in management processes is key to resource conservation, but it is less clear how to do it. Here, based on a literature review and new information, we present and analyze a case in which the participation of fishers in the management process was crucial in recovering an overexploited small-scale fishery for the pirarucu (Arapaima spp.) in the Amazon Basin, Brazil. In 8 years of experimental management, from 1999 to 2006, the population of pirarucu increased 9-fold (from about 2200 to 20,650 individuals), harvest quotas increased 10-fold (from 120 to 1249 individuals), and fishers’ participation in the management process increased and they benefited from increased monetary returns. Additionally, the number of communities conducting the management scheme increased from 4 in 1999 to 108 in 2006, following the demands of fishers and regional government agencies. Based on our analysis, we suggest that the participation of fishers in the management of other small-scale fisheries in the world can be improved by focusing on (1) applying the knowledge and skills of fishers in resource monitoring and management, (2) bridging knowledge systems among all involved stakeholders, (3) collaborating with fishers that are interested in, and capable of conducting, resource conservation schemes, and (4) conducting management under conditions of uncertainty.     

An approach for integrating economic impact analysis into the evaluation of potential marine protected area sites

Marine protected areas (MPAs) are one tool that can be used in the comprehensive management of human activities in areas of the ocean. Although researchers have supported using MPAs as an ecosystem management tool, scientific research on MPAs in areas other than fisheries and fisheries management is limited. This paper presents a model for designing marine protected areas that protect important components of the ecosystem while minimizing economic impacts on local communities. This model combines conservation principles derived specifically for the marine environment with economic impact assessment. This integrated model allows for consideration of both fishery and non-fishery resources and activities such as shipping and recreational boating. An illustration of the model is presented that estimates the total economic impacts on Massachusetts' coastal counties of restricting fishing and shipping at certain sites in an area in the southern Gulf of Maine. The results suggest that the economic impacts on the region would differ according to the site in which shipping and fishing were restricted. Restricting activities in certain sites may have considerable impacts on local communities. The use of the model for evaluating and comparing potential MPA sites is illustrated through an evaluation of three different policy scenarios. The scenarios demonstrate how the model could be used to achieve different goals for managing resources in the region: protecting important components of the ecosystem, minimizing economic impacts on the local region, or a combination of the two.     

Governance assessment of small-scale inland fishing: The case of Lake Itezhi-Tezhi,Zambia

The small-scale fishing sector in sub-Saharan Africa is experiencing multiple challenges, mainly related to various governance issues. This study assessed the governance approach at a small-scale Lake Itezhi-Tezhi fishery, Zambia and how it relates to sustainable fishing. Data were collected through a mixed-methods approach. The governance approach was assessed by legitimacy criterion. The study revealed that there was no co-management in place but a dual governance approach—fishing community-based approach and central government-controlled approach. Both were ineffective, mainly due to lack of adherence to the legislation for local community participation in fisheries governance and an inadequate policy framework to guide the governance process. Also, the governance approaches lacked legitimacy with stakeholders. As such, unsustainable fishing practices had continued. To move towards sustainable fishing at the fishery, the study suggested the following measures: active stakeholders' collaboration and engagement with the government for prompt implementation of legislation that promotes active local fishers' participation; establishment of an appropriate fisheries policy; and ultimately, a transformation of the current governance approach into a legitimate co-management governance approach. These suggested recommendations might be useful to other African small-scale inland fisheries with similar governance challenges, and also towards meeting Sustainable Development Goal 14 on sustainable fishing.     

From Experiential Knowledge to Public Participation: Social Learning at the Community Fisheries Action Roundtable

Extensive research demonstrates that public participation in environmental decision making can increase understanding of diverse worldviews and knowledge bases, public faith in governance institutions, and compliance with resulting rules. Concerns linger around costs, possibilities of polarization and decreased legitimacy in cases of poorly executed processes, and the ability of newly empowered groups to gain political leverage over others. If participants in public processes can bracket their personal experience to better assess other viewpoints, establishing mutual respect and understanding through deliberative exchange, they increase the likelihood of maximizing participatory benefits and minimizing risks. Such reflexivity indicates double-loop social learning, change undertaken through collective discussion and interaction. A capacity-building workshop program aims to foster such learning within the Maine fishing industry. Case material draws primarily on participant observation and interview data, using a grounded theory approach to qualitative analysis. Evidence indicates that in social contexts removed from the norms of daily life and the frustrations of past fishery management confrontations, harvesters acquire knowledge and skills that facilitate more strategic and productive behavior in formal and informal marine resource decision venues. Suspensions of longstanding spatio-temporal assumptions around the prosecution and management of fisheries comprise key learning moments, and yield corresponding changes in industry attitudes and actions. With heightened appreciation for a diversity of experiences and management priorities, harvesters can better mobilize a broad spectrum of local knowledge to develop viable regulatory proposals and collaborative decision processes.     

The digital frontiers of fisheries governance: fish attraction devices,drones and satellites

ABSTRACT

High seas fisheries remain one of the least transparent global production practices. Distance from shore, coupled with the highly mobile nature of fish stocks, has put attention on new monitoring, control and surveillance technologies to collect spatially referenced data on the location of fishing vessels, gears and even fish stocks and eradicate illegal, unreported and unregulated fishing activity. Faced with their nascent implementation, research is yet to address how these technologies are reconfiguring the roles and responsibilities of public and private actors involved in fisheries management, including who collects and controls fisheries related information. In this paper, we compare three monitoring, control and surveillance technologies that are gaining traction in fisheries; the use of private fish attraction devices in oceanic tuna fisheries, unmanned public drones for marine surveillance and global satellite monitoring of fishing vessels. In doing so, we question how different configurations of actors are structuring flows of information and with what effect on sustainability performance of high seas fisheries. We also explore how these technologies configure new (and imagined) geographies of high seas fisheries which challenge existing modes of fisheries management.     

Patterns of selectiveness in the Amazonian freshwater fisheries: implications for management

Tropical fisheries, which are considered multi-species, may show selectiveness. We analyzed the degree of selectivity of fish catches in 46 sites along the Amazon basin through the percentage of biomass corresponding to the most caught fish species. Amazonian fisheries were considered moderately selective, as 54% of the sites directed more than a quarter of fishing effort to one fish species and in 87% of the sites more than half the fishing effort was directed to five fish species. Commercial fisheries were more selective than subsistence fisheries. Eleven fish species (nine of them migratory) have received more fishing pressure in the studied Amazonian regions and the catch composition differed among regions. We thus recommend that fisheries management in the Amazon basin should distribute fishing effort among more fish species; incorporate the particularities of commercial and subsistence fisheries; evaluate fishing effects on ecosystem services; and consider the biological characteristics of preferred fish.     

Incorporating Indigenous Rights and Environmental Justice into Fishery Management: Comparing Policy Challenges and Potentials from Alaska and Hawaiʻi

Colonial processes including the dispossession of indigenous lands and resources and the development of Western management institutions to govern the use of culturally important fish resources have served in many ways to marginalize indigenous interests within the United States fisheries. In recent years, several US fishery institutions have begun to develop policies that can confront this colonial legacy by better accommodating indigenous perspectives and rights in fishery management practices. This paper analyzes two such policies: the 2005 community quota entity program in Alaska which permits rural communities (predominantly Alaska Native villages) to purchase and lease commercial halibut fishing privileges and the 1994 State of Hawai?i community-based subsistence fishing area (CBSFA) legislation through which Native Hawaiian communities can designate marine space near their community as CBSFAs and collaborate with the state of Hawai?i to manage those areas according to traditional Hawaiian practices. The analysis reveals a striking similarity between the trajectories of these two policies. While they both offered significant potential for incorporating indigenous rights and environmental justice into state or federal fishery management, they have so far largely failed to do so. Environmental managers can gain insights from the challenges and potentials of these two policies. In order to introduce meaningful change, environmental policies that incorporate indigenous rights and environmental justice require a commitment of financial and institutional support from natural resource agencies, a commitment from indigenous groups and communities to organize and develop capacity, and careful consideration of contextual and cultural factors in the design of the policy framework.     

Social Contexts and Customary Fisheries: Marine Protected Areas and Indigenous Use,Australia

Worldwide, the implementation of marine protected areas (MPAs) offers opportunities for delivering fisheries and biodiversity management objectives. In Australia however, the primary function of an MPA is that of biodiversity conservation. Nonetheless, the management of Indigenous customary fisheries is one area where fisheries and biodiversity issues converge. This article examines the relationship between biodiversity and customary fisheries in an MPA context by investigation of the role and importance of Indigenous social contexts. Using case study examples from Australia, I explore the role of Indigenous social contexts in two dimensions: (i) management of traditional fisheries and (ii) Indigenous contribution to fisheries within an MPA. Findings demonstrate two narratives concerning social contexts, one of recognition and the other concerning Indigenous involvement in management. I conclude with a survey of Indigenous management initiatives within MPAs. The article ends with a discussion of the utility of understanding social contexts in any marine management endeavour, specifically other social contexts within an MPA.     

Modelling the effects of trade-offs between long and short-term objectives in fisheries management

Fisheries management is typically a complex problem, from both an environmental and political perspective. The main source of conflict occurs between the need for stock conservation and the need for fishing community well-being, which is typically measured by employment and income levels. For most fisheries, overexploitation of the stock requires a reduction in the level of fishing activity. While this may lead to long-term benefits (both conservation and economic), it also leads to a short-term reduction in employment and regional incomes. In regions which are heavily dependent on fisheries, short-term consequences of conservation efforts may be considerable. The relatively high degree of scientific uncertainty with respect to the status of the stocks and the relatively short lengths of political terms of office, generally give rise to the short-run view taking the highest priority when defining policy objectives. In this paper, a multi-objective model of the North Sea is developed that incorporates both long-term and short-term objectives. Optimal fleet sizes are estimated taking into consideration different preferences between the defined short-term and long-term objectives. The subsequent results from the model give the short-term and long-term equilibrium status of the fishery incorporating the effects of the short-term objectives. As would be expected, an optimal fleet from a short-term perspective is considerably larger than an optimal fleet from a long-run perspective. Conversely, stock sizes and sustainable yields are considerably lower in the long-term if a short-term perspective is used in setting management policies. The model results highlight what is essentially a principal-agent problem, with the objectives of the policy makers not necessarily reflecting the objectives of society as a whole.     

Strategies for Rebuilding Closer Links between Local Indigenous Communities and Their Customary Fisheries in Aotearoa/New Zealand

There is a growing recognition that knowledge of indigenous communities, based on accumulated observations and experience over time, is significant for sustainable environmental management in collaboration with modern scientific knowledge. A number of innovative policy initiatives are currently being implemented in New Zealand to enable indigenous Maori tribes and sub-tribes to rehabilitate and manage their local fisheries in accordance with customary values and practices. These policies are an important milestone from an historical perspective as they are meant to recognise and empower the role of Maori as Treaty partners. The fisheries management regime in New Zealand now provides for Maori representation at the local level within a co-management framework that enables local Maori communities to exercise their customary rights. These institutional arrangements have been crafted to facilitate Maori input, based on customary values and practices, to complement modern Western management practices for sustainable harvesting of marine resources. Nevertheless, the degree to which these initiatives constitute an adequate response to Maori Treaty aspirations is debatable. A major constraint in this respect is that the government is compelled to recognise the needs of other, economically and politically more dominant, non-Maori user-groups in allocating and managing access to fishery resources and the marine environment.