Ecosystem-Based Fisheries Management in the Chesapeake: Developing Functional Indicators

A step-wise approach to implementing ecosystem-based fishery management (EBFM) offers both a tractable policy opportunity and feasible set of scientific responsibilities in ongoing efforts to incorporate ecosystem dynamics into fisheries management. This case study of oysters in the Chesapeake takes a regional approach and utilizes a fishery species that is a popular menu item, an important habitat for other fish species, and a cultural touchstone in the area. From grounding in ecosystem service policy goals and a survey of stakeholders from across industry, management, science, and community groups, we developed eight indicators that are meant to serve as a first-order check for EBFM. We evaluated these indicators based on data availability, spatial coverage of the whole region, and relevance to ecosystem service goals. Spatial integration of indicators addressing chemical, biological, social, and economic factors, allows identification of localities within the region that require more attention, either by scientists or policymakers, in order to meet EBFM goals.     

Contributions by Women to Fisheries Economies: Insights from Five Maritime Countries

The contribution by women to fisheries economies globally continues to be overlooked, in part, because “fishing” is often narrowly defined as catching fish at sea, from a vessel, using specialized gears. Both men and women are involved in fisheries, but often in different roles and activities. Fisheries research, management, and policy have traditionally focused on direct, formal, and paid fishing activities—that are often dominated by men, ignoring those that are indirect, informal, and/or unpaid—where women are concentrated. This has led to a situation where men's and women's contributions to fisheries are not equally valued or even recognized and has resulted in women being largely excluded from fisheries decision-making processes. Here, we examine the contributions by women in the fisheries sector of five globally significant marine fishing countries—Mexico, Peru, Senegal, South Africa, and Vietnam. These countries each have strong links between livelihoods and marine capture fisheries, yet represent different geographic, socioeconomic, and governance contexts. Through a synthesis of existing data, case studies, and consultation with local experts, we found that the contribution by women to the fisheries of these five countries is substantial. However, this investigation also revealed major gaps in understanding of gender inequalities in the fisheries sector and the need for better gender-disaggregated data to inform fisheries policy.     

Application of a Sustainable Fisheries Development Indicator System (SFDIS) for Better Management Outcomes in Taiwan Offshore and Coastal Fishery

A sustainable fisheries development indicator system (SFDIS) is proposed in this article to monitor management of Taiwan's offshore and coastal fisheries. Demonstration of its application shows that the ecological index is tending toward sustainability but to conserve fisheries’ resources it is necessary to strengthen habitat protection and management through a partnership approach. The economic index is tending toward unsustainability as a result of a decline in fisheries’ Gross Domestic Product (GDP), value, economic production, and investment. An aging fisherman population and decreasing social performance and resilience contribute to unsustainability of the social index. By contrast, the institutional index is sustainable because of improved management efficiency, ability, and capacity-building. However, some problems exist with regard to compliance and acceptability of institutional expense. Overall, the SFDIS suggests that an increase in employee number, incorrect statistical data, and unacceptable institutional expense will make Taiwan's offshore and coastal fisheries unsustainable in the long run.     

A Network Perspective on Spatially Clustered Territorial Use Rights for Fishers (TURFs) in Vietnam

Co-managed territorial use rights for fishers (TURFs) have shown promise for small-scale fisheries management. The territorial use rights help clarify access and ownership rights, while co-management arrangements create formal relationships between fishers and government. However, there is limited research into the governance processes that influence the interactions and complementarities of TURF zones that are clustered together. In a network of 16 co-managed TURFs in the Cau Hai lagoon, Vietnam, we analyzed management decentralization and the relationship between spatial and networked (social) proximity. Our findings draw attention to several broad lessons for co-managed TURFs: (1) TURFs may operate as isolated silos if co-management agreements do not address relationships among TURF leaders; (2) spatial proximity does not automatically translate to social proximity; and (3) leaders of individuals TURFs need capacity for communication and coordination with other local fisheries leaders. These findings highlight the importance of consideration to the ways that TURF design and implementation influences the relationships and collaboration between fishers, government officials, and other actors.     

Fisheries Governance Affecting Conservation Outcomes in the United States and European Union

Abstract

Fisheries management in the USA, as governed by the Magnuson–Stevens Fishery Conservation and Management Act (MSA), has been decidedly more successful at meeting its conservation goals than has fisheries management in the EU, as governed by the Common Fisheries Policy (CFP). In an effort to explain the different outcomes in these two systems that share many management attributes, we evaluated them against a list of effective governance attributes gleaned from the literature. We also examined the distribution of rights and responsibilities within each system, and the resulting stewardship incentives. Five effective governance attributes are fully realized under the MSA but have historically been absent from the CFP system: adequate regulatory authority, effective enforcement mechanisms, science-based decision-making, conservation-oriented goals and clear objectives, and directives. These governance system gaps, along with uneven distributions of rights, responsibilities, and incentives, may be responsible for the observed difference in conservation outcomes.     

Sea Cucumber Moratorium and Livelihood Diversity in Papua New Guinea

Livelihood diversity factors such as flexibility within fisheries, geographical mobility, reallocation of fishing effort into the broader economy, and the non-material benefits that fisheries provide are important areas of research in marine policy. We use two small-scale fisheries related socio-economic surveys of communities in the Tigak Islands of Papua New Guinea. The first conducted 5 years before a ban on the harvesting of sea cucumbers was imposed and the second from the present day, 5 years after the initiation of the ban—with the objectives of exploring changes in household fishing strategies (types and numbers of species targeted) and to identify any important socioeconomic factors that help explain those changes. Fishing's contribution to total household income has increased significantly (p = 0.019) up from 61% in 2004 to 73% in 2014 with the percentage of female residents living in a household now positively and significantly (p = 0.018) associated with fishing income. The average number of species categories targeted per household increased insignificantly while households with more women are significantly (p = 0.018) less likely to target more species than households with more men. Moreover, customary management practices contribute to this difference. Together, these results show that households are not worse off financially 5 years after the ban on sea cucumber harvesting and that gendered seascape use has implications for the role of livelihood diversity as a marine policy tool.     

Governance for Sustainability: Insights from Marine Resource Use in a Tropical Setting in the Western Indian Ocean

The last decade has seen a shift in the Natural Resource Management discourse, a shift from management to governance. Governance is held forward as a prime solution to problems associated with the sustainability of natural resources, including fisheries and other marine resources. Several countries in the Western Indian Ocean are framing governance solutions as a response to coastal/marine resource depletion and environmental degradation, but the challenges are huge and success stories remain few. This study provides an analysis of the governance situation in Chwaka Bay, Zanzibar, Tanzania. It presents the governance actors and how governance is expressed in terms of hierarchy (state), heterarchy (self-organized networks of resource users), and anarchy (market). The analysis illustrates the extreme difficulties of using governance approaches to steer human behavior to solve environmental problems and achieve sustainability. The study also provides some insights when considering the use of governance as a tool for the “designing” and/or “steering” social–ecological systems in subsistence contexts with weak formal institutions. These include the consideration of governance as an intrinsic part of complex societal processes, the idealization of governance as a template for redressing management failure and broader issues such as the importance of meta-governance.     

Influence of Governance Context on the Management Performance of Marine Protected Area Networks

In the Philippines, networks of marine protected areas (MPAs) are more complex than individual MPAs, primarily due to involvement of multiple governance units. Hence, there is a need to understand the influence of governance context of networks on management performance. We addressed this need indirectly by evaluating the participation of network members and the governance capacity of three MPA networks with varying sizes, histories, and compositions of local governments and constituencies. We defined participation as the involvement of local governments and other stakeholders in decision-making processes. We defined governance capacity as the ability to govern interactions of social, economic, and political processes and dynamics in a political unit. We used qualitative, semi-structured key informant interviews and focus group discussions to ascertain whether participation and governance capacity are influenced by network size, institutional arrangements, and social and political contexts. We found that the sizes of the MPA networks did not affect participation and governance capacity. Instead, participation and capacity were influenced by institutional arrangements and the socioeconomic and political contexts of the local governments involved. We found that less complicated network objectives and systems for engagement, more inclusive membership, better communication, incentive systems, and strong leadership enhanced participation and governance capacity.     

Marine Protected Area Costs as “Beneficial” Fisheries Subsidies: A Global Evaluation

Marine protected areas (MPAs) are now generally accepted as important tools in the protection of coastal biodiversity. It is also likely that they play a positive role in enhancing fisheries. Yet currently, less than 1% of the global oceans are protected, although international agreements have targets ranging from 10–30% coverage. Despite its minuscule size, we consider the current MPA “network” to be beneficial to fisheries, and its running or maintenance cost, therefore, to be a positive contribution to the sustainability of fisheries, or a “beneficial” subsidy (“harmful” subsidies enhance fishing capacity and effort). A method was derived from data in Balmford et al. (PNAS, 101: 9694–9697) to estimate the annual cost of maintaining MPAs as a function of their size, and of the degree of development of the country in question. We provide national costs of the 53 countries that jointly contribute 95% of global fisheries catch and, assuming that this type of subsidy, in a given country, cannot exceed 15% of the ex-vessel value of its fisheries catches, estimated a global MPA subsidy to fisheries of 870 million US$. Given that total subsidies to fisheries currently range from 30–34 billion US$ annually (without MPA costs), this amounts to only 2.5–2.8% of total subsidies to fisheries being devoted explicitly to the maintenance of the biodiversity that sustains them.     

Learning from Ecosystem-Based Management in Practice

We explore how marine ecosystem–based management (EBM) is translated from theory to practice at six sites with varying ecological and institutional contexts. Based on these case studies, we report on the goals, strategies, and outcomes of each project and what we can learn from these efforts to guide future implementation and assessment. In particular, we focus on how projects dealt with the challenges of working across geographic scales and diverse governance arrangements. While we hypothesized that EBM in the United States would be distinct from EBM in developing countries due to differences in social and political factors, we found that sites faced similar challenges. Variation among sites appeared to be more closely related to the preexisting management context and the scale at which the projects began rather than to clear differences between the United States and developing country contexts. EBM project implementers were able to overcome many of these challenges by focusing on a limited number of specific objectives, starting at a small scale, pursuing adaptive management, and monitoring a diverse set of indicators. These findings are directly relevant to current and future EBM efforts in these and other places.     

Coastal and Ocean Science-Based Decision-Making in the Gulf of California: Lessons and Opportunities for Improvement

The Gulf of California hosts astounding biodiversity that supports numerous economic activities in the region. These activities, and emerging threats, are placing pressure on the region's ecosystems. Government and civil society are working to address threats through several conservation and management mechanisms. Nevertheless, the use and incorporation of scientific information—a key component for creating effective and durable management—is still deficient. This article presents the concept of science integration and discusses the findings of a study that assesses the regional landscape, existing institutional arrangements, and capacity for using science to inform policy and management decisions. It also explores the current use of science within fisheries policy and management and the capacity of the National Network of Information and Research of Fisheries and Aquaculture (RENIIPA) and the State Fisheries and Aquaculture Councils, two mechanisms in the region. Finally, it shares lessons learned and offers recommendations on how the region can strengthen science-based decision-making. Results indicate that while there are some actors in the Gulf of California producing relevant science, there is varying capacity of intermediary groups connecting producers with users of science, or mechanisms in place to ensure that science is being utilized in decision-making processes. Moreover, despite having a well-developed landscape of producers and intermediaries and mechanisms in place for fisheries management in the region, effective science integration is not occurring.     

A Step Zero Analysis of the Galapagos Marine Reserve

Contrary to common perceptions, the creation of protected areas does not start when they are officially declared but generally follows a long process. For instance, the Galapagos Marine Reserve (GMR) was not “born” when it was formally announced on March 18^th 1998, but several decades before that. Through document analysis and key informant interviews, we applied the “step zero” approach to examine what happened prior to the implementation of the GMR. This study reveals that the GMR did not arise from a social and political vacuum; rather, events took place in the distant past, even centuries ago, influenced the reserve's creation and current status. Its establishment was driven by complex geopolitical, economic, social, and environmental factors from both within and outside Galapagos. Additionally, the process of creating the GMR was convoluted, marked by hidden interests and conflictive political agendas that triggered controversies between users. The making of the GMR was also influenced by the interest in promoting “nature-based” tourism, and the regulations that followed had disadvantaged small-scale fishers. This knowledge about the reserve's pre-implementation phase enables a broader understanding of the current challenges facing the performance of the GMR and points to possible governance interventions needed to enhance its sustainability.     

Lessons from a Multi-Scale Historical Reconstruction of Newfoundland and Labrador Fisheries

In this article we use a multi-scale, multi-method historical reconstruction of post– World War II social-ecological interactions within fisheries in Newfoundland and Labrador to explore the dynamics of intensification, expansion, and resource degradation in managed fisheries. Our case study draws on landings statistics, other archival information, and the Local Ecological Knowledge (LEK) of fish harvesters to explore these linked dynamics at the macro, meso, and micro levels. By some measures we found large scale trends toward intensification of effort leading to over-harvesting at macro (province wide) levels. At the same time, at the local level (micro-scale) and across sectors and regions (the meso-scale), we found highly fluid fishing practices and a complex suite of stated motivations for change. As a basis for effective governance, an understanding of the dynamics of interactive restructuring in social ecological systems will require multi-scale analyses that are sensitive to this complexity.     

In Political Seas: Engaging with Political Ecology in the Ocean and Coastal Environment

The world’s oceans and coasts are awash in a sea of politics. The marine environment is increasingly busy, changing, and a site of degradation, marginalization, injustice, contestation and conflict over declining resources and occupied spaces at local to global scales. Themes of political ecology, such as power and politics, narratives and knowledge, scale and history, environmental justice and equity, are thus salient issues to understand in ocean and coastal governance and management. This subject review examines research on these themes of political ecology in the ocean and coastal environment and reflects on how the insights gained might be applied to governance and management. Political ecology provides important insights into: the influence of power in ocean management and governance processes; the manner in which narratives, knowledge, and scale are used to legitimize and shape policies and management efforts; the effects of historical trajectories on present circumstances, options, and practices; and the nature of inequities and environmental injustices that can occur in the marine environment. Moreover, ocean and coastal researchers, practitioners, and decision makers ought to engage with the political processes and injustices occurring in the ocean. Moving from critical insights to constructive engagements will ensure that political ecology helps to plant seeds of hope in the Anthropocene ocean.     

Do Active Participation Measures Help Fishermen Retain Fishing Privileges?

In numerous fisheries management programs, managers have implemented measures to ensure that the benefits of the fishery accrue to those who are actively fishing. Although active participation measures are common in fisheries management, there has been limited research on these measures. This study highlights the variety of objectives that motivate the development of active participation measures and how they have been implemented. We examine the application of these measures in four case study fisheries management programs—the Alaska Halibut and Sablefish Individual Fishing Quota, the Pacific Coast Sablefish Permit Stacking, the Bering Sea and Aleutian Islands Crab Rationalization, and the Alaska State Limited Entry programs—and, based on the experiences in these programs, provide recommendations for instituting active participation measures in other management programs.     

Potential Benefits of Coastal Ocean Observing Systems to Alaskan Commercial Fisheries

In this article we attempt to illustrate the potential benefits to Alaskan commercial fisheries expected from enhancements to the Alaska Ocean Observing System (AOOS) through changes in fishery management strategies. In particular we show how the use of improved AOOS data in research, stock assessment, and ultimately fisheries management has the potential to result in significant benefits in the Bering Sea and Gulf of Alaska groundfish and Kodiak king crab fisheries. We show through a case study approach that information such as might be provided by an enhanced AOOS could conceivably contribute over $600 million in additional annual revenue in Alaska's groundfish fishery. In addition we estimate that had the information from such a system been available in the 1970s and 1980s the Kodiak king crab stock collapse could have been avoided and $60 million in annual revenues generated. Benefit estimates (as measured by revenue increases) are based on the assumptions that when better data is delivered those data will be integrated into stock assessment models; when better data are integrated into the models the new data will actually improve the reliability of the models; and when the reliability of the models is improved predictions will be accepted by managers or industry members.     

The Decline of the Artisanal Fisheries in Mediterranean Coastal Areas: The Case of Cap de Creus (Cape Creus)

This article examines the sociocultural, economic, and environmental causes of the decline of the artisanal fisheries in the rocky coast of Cape Creus (NW Mediterranean) over the past decades. The changes that have occurred over time have favored trawlers, purse-seiners, shellfish fisheries, and tourism activities, to the detriment of artisanal fisheries. This article shows that the establishment of a marine reserve in 1998 could not reverse the observed decline in the artisanal fisheries. This raises the necessity of implementing a fishery management plan integrated into a coastal management plan, which should accompany the habitat protection. These plans could assist in the maintenance and the sustainable development of the artisanal fishing sector in Cape Creus as well as in other Mediterranean coastal areas where artisanal fisheries are also declining.     

Community Perceptions of a World Heritage Nomination Process: The Ningaloo Coast Region of Western Australia

The remote Ningaloo Coast region, the location of Australia's largest fringing coral reef, was designated as World Heritage (WH) in 2011 based on its outstanding natural values. In the past, the WH nomination process predominantly involved experts and state officials. More recently, local community involvement has become a required part of the process, representing a move toward participatory governance that can potentially influence WH designation. Understanding community perceptions of the WH nomination process provides insights into the consequences of community involvement. Interviews were conducted with key local community members involved in the Ningaloo Coast WH nomination. Interviews focused on the perceptions and experience of the nomination process and local meanings of WH designation. Results indicated that while there was support for WH designation, the nomination process was seen as controversial. Community involvement was dominated by local political and social concerns, mistrust, misinformation, and perceived unfairness. Concerns were influenced by past and current government actions and decision-making in the region. The article identifies some challenges associated with local community involvement in a WH nomination process. These challenges raise questions about participatory governance and how local community's engage in the WH nomination process for coastal regions identified by experts as globally significant.