Closing the Incentive Gap: The Role of Public and Private Actors in Governing Indonesia's Tuna Fisheries

Indonesia is one of the world's largest tuna producing countries, yet regulatory oversight remains weak and management is poor. Incentive-based approaches are a way to improve state-based resource management, but they often require strong government regulation. In this paper, we use principal–agent theory and the notion of the ‘incentive gap’ to explore how incentives could be brought to bear in Indonesia through a combination of private and public actors. With a shared fish stock like tuna, we argue that a double principal–agent problem emerges, where information, asymmetries between various players complicate management. We focus on the problems of adverse selection and moral hazard in three different tuna fisheries in Indonesia to identify the nature of the incentive gap, and comment on the mix of public and private actors currently engaged in tuna fishery governance towards reducing the gap. The double principal–agent problem is a useful yet underutilized framework to understand the dynamics of shared stocks management. In this first application to a developing country fishery, we conclude that information asymmetries cannot be overcome without the involvement of private actors, who are increasingly becoming important in aligning regional and global objectives with those of fishers themselves.     

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.     

Environmental change and fishery management in the northern Persian Gulf

Approximately 52% of the 380,000 tons of fish landings in Iran come from the northern Persian Gulf, with a total of 108,000 fishermen and 8900 fishing vessels (2003 data). The fishery in the region is very important for the local economy, but the major problems facing the Iranian fisheries are an uncertain availability of fish and over-fishing. The Persian Gulf is a sensitive marine ecosystem. The Gulf is a partially enclosed sea with an average depth of 35 metres and replacement of waters take some three to five years. Environmental factors have a major effect on fish stocks and fisheries in such a sensitive ecosystem. This study examines the influence of environmental changes in water temperature, rainfall, wind and sea level pressure on fish stocks in the northern Persian Gulf and estimates the maximum sustainable yields for fisheries management. Multivariate data and surplus production bio-economic models with environmental parameters are used to determine optimal harvest and forecasting. The study found that rainfall, water temperature and wind had significant positive effects whereas sea level pressure had a negative effect on the fisheries in the northern Persian Gulf. It is concluded that environmental parameters should be monitored concurrently with the fisheries to allow a greater understanding for fisheries management in the Persian Gulf.     

By-Catch Impacts in Fisheries: Utilizing the IUCN Red List Categories for Enhanced Product Level Assessment in Seafood LCAs

Overexploitation of fish stocks causes concern not only to fisheries managers and conservation biologists, but also engages seafood consumers; more integrated product perspectives would be useful. This could be provided by life cycle assessment (LCA); however, further complements of present LCA methodology are needed to assess seafood production, one being by-catch impacts. We studied the scientific rationale behind using the IUCN Red List of Threatened Species? for assessment of impacts relating to fish species’ vulnerability. For this purpose, the current Red List status of marine fish in Sweden was compared to the advice given in fisheries as well as key life history traits known to indicate sensitivity to high fishing pressure. Further, we quantified the amount of threatened fish (vulnerable, endangered, or critically endangered) that was discarded in demersal trawl fisheries on the Swedish west coast. The results showed that not only did the national Red List of marine fish have a high consistency with advice given in fisheries and indices of vulnerability, the different fishing practices studied were also found to have vastly different amounts of threatened fish discarded per kilo landing. The suggested approach is therefore promising as a carrier of aggregated information on the extent to which seafood production interferes with conservation priorities, in particular for species lacking adequate stock assessment. To enable extensive product comparisons, it is important to increase coverage of fish species by the global IUCN Red List, and to reconsider the appropriate assessment unit (species or stocks) in order to avoid false alarms.     

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.     

Bio-economic evaluation of implementing trawl fishing gear with different selectivity

The paper develops a biological-economic evaluation tool to analyse the consequences for trawl fishers of implementing more selective fishing technologies. This is done by merging a dynamic biological population model and an economic cost–benefit evaluation framework to describe the consequences for the fish stocks, fishermen and society. The bio-economic evaluation is applied to the case of the Danish trawl fishery in Kattegat and Skagerrak, which experiences a high level of discards and bycatches of several species. Four different kinds of selectivity scenarios are evaluated in comparison with a baseline. The results from the evaluation are indicators for the consequences on ecological and economic levels. The results show that implementation of different selective fishing gear in the Kattegat and Skagerrak mixed trawl fisheries generally implies a trade off over time between rebuilding the stocks and economic loss. Moreover, the analysis shows that implementation of more selective gear is not always beneficial.     

The unintended role of the local private sector in biodiversity conservation in the Tonle Sap Biosphere Reserve, Cambodia

The local private sector currently plays an important role in the protection of biodiversity of the Tonle Sap Lake. Large parts of the lake and surrounding floodplain—so-called fishing lots—are auctioned for private exploitation of the rich fisheries. The owners of fishing lots go to great lengths to ensure that there is a maximum amount of fish inside the lot by protecting the area from disturbance and poaching. The core areas of the Tonle Sap Biosphere Reserve are situated inside such fishing lots. Although it is unintended, the fishing lots and the protective measures taken by their owners to maximize extraction of fish provide effective protection for the large colonies of water birds nesting inside the core areas on the floodplain and possibly for other elements of biodiversity. Plans to end the fishing lots system in the core areas and to replace it by more effective, public-sector management and protection are prepared. Will they be counterproductive and put the core areas and their biodiversity further at risk?     

The Ethics and Sustainability of Capture Fisheries and Aquaculture

The global seafood industry (capture fisheries and aquaculture) is a vital source of food, income, livelihoods, and culture. Seafood demand is steadily rising due to growth in the global human population, affluence, and per capita consumption. Seafood supply is also growing, despite declining wild fish stocks, with phenomenal advances in aquaculture, that is, the cultivation of aquatic organisms. Aquaculture supplied 42 % of the world’s fish in 2012 and is forecast to eclipse capture fisheries production by 2030. The balance between these two seafood production systems has profound implications for global food security, income distribution, and ecological sustainability. Here, a qualitative analysis of the ethics and sustainability of capture fisheries and aquaculture is presented. An innovative practical ethics approach is introduced which adapts the ethical matrix, a conceptual tool for analyzing the wellbeing, autonomy, and justice of different interest groups, and Rapfish, a rapid appraisal technique used to evaluate the sustainability of fisheries along six performance modalities, including ethics. Using case studies of global large- and small-scale capture fisheries and generalized carnivorous and omnivorous aquaculture systems, I show that human institutions and social actors interact in complex governance processes to influence seafood ethics and sustainability.     

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.     

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 Management-Orientated Comparative Analysis of Urban and Rural Anglers Living in a Metropolis (Berlin,Germany)

Increased efforts to analyze the human dimensions of anglers are necessary to improve freshwater fisheries management. This paper is a comparative analysis of urban and rural anglers living in a metropolis, based on n = 1061 anglers responding to a mail survey in the German capital of Berlin. More than two thirds of the anglers (71%) had spent most (>50%) of their effort outside the city borders of Berlin and thus were categorized as rural anglers. Compared to the rural anglers, urban anglers (50% of total effort spent inside the city) were younger and less educated. Urban anglers were more avid and committed, less mobile, and more frequently fished from boats and during weekdays. Rural anglers were more experienced, fished for longer times per trip, fished more often at weekends and on holidays, were more often members of angling clubs, and more frequently caught higher valued fish species. The achievement and fish quantity aspects of the angling experience were more important for urban than for rural anglers. Concerning management options, urban anglers more frequently suggested constraining other stakeholders and reducing regulations, whereas rural anglers more often proposed improving physical access to angling sites. Future urban fishing programs should offer ease of access, connection to public transportation, moderate prices, and diverse piscivorous fish stocks. In contrast to rural fisheries, the provision of high ecological and aesthetical quality of the angling waters can be regarded as of minor importance in urban fisheries. Rural fisheries managers need to consider the needs of stakeholders living in Berlin to minimize impacts on the less degraded rural water bodies and potential user conflicts with resident anglers. Ecosystem-based management approaches should guide rural fisheries policy.     

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.     

Mekong River Fish Conservation Zones in Southern Laos: Assessing Effectiveness Using Local Ecological Knowledge

Small-scale fisheries are important in Laos, where rural people heavily depend upon Mekong River and tributary fish stocks for their livelihoods. Increasing pressures from human exploitation and habitat disturbance, however, have raised serious concerns about the potential depletion of various species. This has led to the establishment of large numbers of Fish Conservation Zones (FCZs) or “no-take” fish sanctuaries in southern Laos based on a “community-based fisheries co-management” framework. This study uses the local ecological knowledge (LEK) of fishers to assess the effectiveness of village-managed FCZs in enhancing fish stocks in the mainstream Mekong River in Khong District, Champasak Province. Focus group interviews about species that are believed to have benefited from different FCZs are compared with parameters such as FCZ area, age, depth, localized gradient, water velocity, and the presence of wetland forests nearby. The results suggest that no one aspect is likely to account for variations in fish stocks; rather, it is the interaction between numerous factors that has the largest impact. Secondly, the results indicate that microhabitat diversity and protection are critical for maintaining and enhancing Mekong fisheries. Deep-water pools are particularly important as dry season refuges for many fish species, and FCZ depth may be the single most important environmental factor affecting the success of FCZs in the Mekong River. FCZs have the most potential to benefit relatively sedentary species, but may also benefit highly migratory species, given the right conditions. This study shows that integrated approaches to stock assessment that employ LEK and scientific fisheries management have considerable potential for improving Mekong capture-fisheries management.     

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.     

Facing limits in oceanic fisheries

Research from the Food and Agriculture Organization of the United Nations (FAO) and fishery scientists indicates that the wild catch offish 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 discusses 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, to be published in the Forum's next issue (February 1995), will examine 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.     

Managing for Desired Experiences and Site Preferences: The Case of Fee-Fishing Anglers

Fee-fishing involves paying a fee for the privilege of fishing a body of water where fish populations are enhanced by stocking fish. Past literature on this activity has focused more on the operation of the enterprise and management of the fish than the people and site characteristics. The objectives of the study were to profile anglers and describe their site/management preferences. This study utilized an on-site interview and mail-back questionnaire at fee-fishing establishments in West Virginia (n = 212). Factor analysis of desired recreation experiences yielded five factors: Experience nature & adventure, Stress release & relaxation, Trophy fishing, Escape, and Family time. Cluster analysis showed that these anglers can be segmented into two distinct clusters, differing by sociodemographic characteristics, fishing behavior, and site/management preferences. The findings from this study provide baseline data to aid public resource managers and fee-fishing business owners in determining how to provide satisfying outdoor experiences and deliver desired services on-site. Future research will be needed from additional fee-fishing sites to obtain more detail about this outdoor recreation cohort and be able to generalize to a larger population of participants.     

Science, Policy, Stakeholders, and Fish Consumption Advisories: Developing a Fish Fact Sheet for the Savannah River

In recent years there has been a startling rise in the issuance of fish consumption advisories. Unfortunately, compliance by the public is often low. Low compliance can be due to a number of factors, including confusion over the meaning of advisories, conflicting advisories issued by different agencies, controversies involving health benefits versus the risks from consuming fish, and an unwillingness to act on the advisories because of personal beliefs. In some places, such as along the Savannah River, one state (South Carolina) had issued a consumption advisory while the other (Georgia) had not, although at present, both states now issue consumption advisories for the Savannah River. Herein we report on the development of a fish fact sheet to address the confusing and conflicting information available to the public about consuming fish from the Savannah River. The process involved interviewing fishers to ascertain fishing and consumption patterns, evaluating contaminant levels and exposure pathways, discussing common grounds for the provision of information, and consensus-building among different regulatory agencies (US Environmental Protection Agency, South Carolina Department of Health and Environmental Control, Georgia Department of Natural Resources) and the Department of Energy. Consensus, a key ingredient in solving many different types of “commons” problems, was aided by an outside organization, the Consortium for Risk Evaluation with Stakeholder Participation (CRESP). The initial role for CRESP was to offer scientific data as a basis for groups with different assumptions about risks to reach agreement on a regulatory response action. The process was an example of how credible science can be used to implement management and policies and provide a basis for consensus-building on difficult risk communication issues. The paper provides several lessons for improving the risk process from stakeholder conflicts, through risk assessment, to risk management. It also suggests that consensus-building and risk communication are continuing processes that involve assimilation of new information on contaminants and food-chain processes, state and federal law, public policy, and public response.     

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.     

Exploring corruption in fisheries

This paper explores corruption in global fisheries. While reducing corruption is critical for the effective management of the fisheries sector and the fulfilment of the UN's sustainable development goals (SDGs, and SDGs14 and 16 in particular), to do so, it is necessary to first have a systematic and comprehensive understanding of what corruption is and how it is manifested in the sector. There is literature on illegal, unregulated and unreported (IUU) fishing, but not much on corruption. The paper proposes an analytical framework and applies it with six revelatory cases to improve the conceptual clarity of corruption in fisheries. Specific corruption problems found in licensing, negotiating access agreements, lax enforcement, extortion, political corruption, money laundering and tax manipulation, human trafficking, etc. can therefore be better identified through this analysis, which lays a base for systematic responses to tackling corruption in fisheries and accordingly furthering the sustainable development of the sector.     

Private–public partnership: An exceptional solution in nature conservation in Norway

Abstract

In Norway, traditional nature conservation by government declaration is still the dominant way of protecting nature areas of national and international interest. This article presents some results from a case study of one exceptional case of private–public partnership in nature conservation. Strong opposition among local actors resulted in conservation by legal contracts between public and private actors. Discussing some possible explanations, the authors argue that a rather special network among the local community and central government and a rather creative combination of environmental and agricultural policy instruments were essential for this particular outcome.