Common but differentiated rights and responsibilities in tuna fisheries management

The UN Law of the Sea Convention (LOSC) and one of the implementing agreements of the Convention—the UN Fish Stocks Agreement (UNFSA)—mandates all states to cooperate in the management of highly migratory and straddling fish stocks. In doing so, the UNFSA specifies that the special requirements of developing states need to be taken into account. To date, except in the Western and Central Pacific Fisheries Commission (WCPFC), there is no formal mechanism to identify these differential responsibilities in tuna regional fisheries management organizations (RFMOs). Although some conservation and management measures exempt small-scale and artisanal fishing vessels, power imbalances within RFMOs tend to favour the interests of more developed and larger distant water fishing nations over those of small developing coastal states. To facilitate the implementation of differentiated responsibilities as mandated in UNFSA, in this study we develop a three-step framework that could be applied in the case of new conservation and management measure proposals. The framework has also been tested based on two developing countries and compared with a developed state in the Indian Ocean Tuna Commission and the adopted resolutions in 2019. To facilitate better transparency and equitable decision-making processes across RFMOs, this framework could be adapted based on member states' fisheries management objectives and target and non-target species.     

Transform high seas management to build climate resilience in marine seafood supply

Climate change is projected to redistribute fisheries resources, resulting in tropical regions suffering decreases in seafood production. While sustainably managing marine ecosystems contributes to building climate resilience, these solutions require transformation of ocean governance. Recent studies and international initiatives suggest that conserving high seas biodiversity and fish stocks will have ecological and economic benefits; however, implications for seafood security under climate change have not been examined. Here, we apply global‐scale mechanistic species distribution models to 30 major straddling fish stocks to show that transforming high seas fisheries governance could increase resilience to climate change impacts. By closing the high seas to fishing or cooperatively managing its fisheries, we project that catches in exclusive economic zones (EEZs) would likely increase by around 10% by 2050 relative to 2000 under climate change (representative concentration pathway 4.5 and 8.5), compensating for the expected losses (around ?6%) from ‘business‐as‐usual’. Specifically, high seas closure increases the resilience of fish stocks, as indicated by a mean species abundance index, by 30% in EEZs. We suggest that improving high seas fisheries governance would increase the resilience of coastal countries to climate change.     

Performance of regional fisheries management organizations: ecosystem‐based governance of bycatch and discards

A performance assessment was conducted of regional fisheries management organizations’ (RFMOs’) bycatch governance, one element of an ecosystem approach to fisheries management. Obtaining a mean score of 25%, with a 64% CV, collectively the RFMOs have large governance deficits. Individually, there has been mixed progress, with some RFMOs having made substantial progress for some governance elements. There has been nominal progress in gradually transitioning to ecosystem‐based fisheries management: controls largely do not account for broad or multispecies effects of fishing, and cross‐sectoral marine spatial planning is limited. Regional observers collect half of minimum information needed to assess the efficacy of bycatch measures. Over two‐thirds of RFMO‐managed fisheries lack regional observer coverage. International exchange of observers occurs in one‐third of programmes. There is no open access to research‐grade regional observer data. Ecological risk assessments focus on effects of bycatch removals on vulnerable species groups and effects of fishing on vulnerable benthic marine ecosystems. RFMOs largely do not assess or manage cryptic, generally undetectable sources of fishing mortality. Binding measures address about one‐third of bycatch problems. Eighty per cent of measures lack explicit performance standards against which to assess efficacy. Measures are piecemeal, developed without considering potential conflicts across vulnerable groups. RFMOs employ 60% of surveillance methods required to assess compliance. A lack of transparency and limited reporting of inspection effort, identified infractions, enforcement actions and outcomes further limits the ability to assess compliance. Augmented harmonization could help to fill identified deficits.     

Regional fisheries management organizations and the new biodiversity agreement: Challenge or opportunity?

In 2018, the international community began formal intergovernmental negotiations over a new legally binding instrument for the protection of marine biodiversity of areas beyond national jurisdiction. Protecting marine biodiversity is imperative for a sustainable future, and all the different organizations and agreements will have to work together to achieve this common goal. One of the first key principles to be agreed was to “not undermine” the existing legal instruments or mandates of regional and sectoral marine governance organizations. While fisheries are not being discussed during the negotiations, a marine biodiversity agreement is likely to still impact regional fisheries management organizations (RFMOs), due to overlapping areas of interest. This article aims to firstly, assess the potential constraints posed by the commitment to “not undermine”; secondly, consider how aspects of the biodiversity agreement, such as area‐based management and environmental impact assessments, might enhance RFMOs; and thirdly, suggest meaningful ways to ensure cooperation between RFMOs and the marine biodiversity agreement.     

Assessing the state of Greek marine fisheries resources

Annual fish landings for the Greek seas were analysed for the period 1982–2007 and classified into exploitation categories based on a catch‐based stock classification method. In 2007, about 65% of the Greek stock were characterised as overfished, 32% as fully exploited and only 3% were characterised as developing; collapsed stocks were not recorded. The cumulative percentage of fully exploited and overfished stocks has been increasing over the past 20 years suggesting overexploitation of resources. The results were contrasted against total landings, the fishing‐in‐balance index (FiB) and fishing effort, and some irregularities on the dataset were explained based on current legislation and management measures. A positive correlation between FiB and total fishing effort confirmed the expansion of the Greek fisheries up to 1994, but contraction thereafter. The results suggest that the apparently stable overall catches and decreasing effort may be deceiving, as they hide an underlying pattern of overexploitation in some of the stocks. It was concluded that the Greek fisheries are no longer sustainable and radical management measures are needed.     

Is it good or bad to fish with FADs? What are the real impacts of the use of drifting FADs on pelagic marine ecosystems?

The use of fish aggregating devices (FADs) by purse seine fisheries has come under increasing criticism for its potential deleterious impacts on tuna stocks, for high levels of by‐catch and threats to the biodiversity of tropical pelagic ecosystems. Here, we review the current state of scientific knowledge of this fishing technique and current management strategies. Our intent is to encourage objective discussion of the topic and highlight areas worthy of future research. We show that catching juvenile tuna around FADs does not necessarily result in overfishing of stocks, although more selective fishing techniques would likely help obtain higher yield. Levels of non‐tuna by‐catch are comparable to or less than in other commercial tuna fisheries and are primarily comprised of species that are not considered threatened. Accordingly, to minimize impacts on ecosystem balance, there is merit in considering that all species captured in purse seine fisheries (excluding vulnerable species such as turtles and sharks) should be retained, but the consequences of such a measure should be carefully examined before implementation. The take of vulnerable species could be further reduced by introduction of additional mitigation measures, but their potential benefits would be limited without parallel efforts with other gears. Finally, there is no unequivocal empirical evidence that FADs represent an ‘ecological trap’ that inherently disrupts tuna biology although further research should focus on this issue. We encourage RFMOs to expand and improve their FAD management plans. Under appropriate management regimes, FAD fishing could be an ecologically and economically sensible fishing method.     

公海深海底层渔业国际管理进展

以底拖网为代表的深海底层渔业对深海脆弱海洋生态系统的危害受到国际社会的热切关注。2003年以来联合国大会多次通过决议,呼吁各国各自并通过RFMO/As采取行动,根据预防性原则,采用基于生态系统的管理方法,评估深海底层渔业对脆弱海洋生态系统的影响,若评估表明确有重大不利影响,则应采取有效措施限制深海底层渔业以降低这种影响;FAO主要从技术角度制定了《公海深海渔业管理国际指南》,为管理公海深海渔业和保护脆弱海洋生态系统提出了技术标准和管理框架;RFMO承担着具体执行深海底层渔业管理措施和监督管理的责任,在北大西洋、地中海、南太平洋的公海和南极水域,相关RFMO已采取了暂停部分区域底拖网渔业活动、收集数据、评估底拖网对脆弱海洋生态系统的影响等措施,在北太平洋,新成立的北太平洋渔业管理委员会将公海底层渔业管理作为首要目标。环保非政府组织和部分科学家呼吁禁止公海深海底层渔业,但各国对此的立场尚不一致,产业界大多持反对立场。近期来看,尚难以全面禁止公海的深海底层渔业。中国正在发展公海大洋渔业,需对此密切关注,加强跟踪研究以支撑决策,并应发展和使用选择性渔具和对生态环境无害的作业方式,防止对脆弱海洋生态系统产生损害性影响。     

Landing profiles of Portuguese fisheries: assessing the state of stocks

Long‐term trends in Portuguese fisheries landing profiles of biodiversity, assemblage composition, trophic groups and marine trophic index (1950–2009) were studied to understand the evolution of the fisheries from an ecological viewpoint and evaluate the effects of fisheries on stocks. The number of species landed has increased considerably since the 1980s. This indicates an expansion of the fisheries and also a better use of the marine biodiversity for redistributing effort. Changes in the ecological composition of fisheries catches have occurred since the 1950s, with a significant shift in the middle 1980s (anchor point). Deep‐sea resources and higher trophic levels (cephalopods, large benthopelagics, flatfishes, demersal invertebrates, small‐medium and large rays, medium bathydemersal, shrimps, small benthopelagics large sharks) have increased while traditional commercial species captured by nearshore fisheries (medium and small pelagics) have decreased. Despite the decreasing trend in catches since 1988, the marine trophic index (MTI = 3.04) increased by approximately 0.2 units per decade (MTI in 2009 = 3.46). The number of collapsed, overexploited and fully exploited stocks has increased considerably over the last 20 years (>50%). Overall, the data indicate that redistributing fishing effort and targeting of deep‐sea resources may have been driven by depletion of inshore fishery stocks, which signals concern for the fishery. Marine biodiversity indexes and ecological structure of landings profiles should be considered by fishery managers when redefining new marine fisheries policy.     

Shooting fish in a barrel? Assessing fisher‐driven changes in catchability within tropical tuna purse seine fleets

With constant innovation to find more efficient ways to find, catch and process fish, catchability in wild fisheries can increase. Catchability is a combination of resource abundance, fishing effort and fishing efficiency: any increase in fleet efficiency can lead to undesirable effects not only on stocks, but also on the ability to assess them. When using effort controls as part of management, it is necessary to adjust for the increase in catchability due to the increases in efficiency over time to avoid stock depletion. Accounting for changes in catchability can be problematic for pelagic stocks, due to the changes in fishing behaviour and the continual change in fishing efficiency. This study investigates the success in finding patches of fish for fleets operating within the western and central Pacific purse seine fishery between 1993 and 2012. Three indices, widely used in ecological research, were used to study how spatial variation in fisher behaviour for sets on fish aggregating devices (FADs) and free‐school sets was related to catchability. For free‐school set types, the diversity index was negatively correlated with Katsuwonus pelamis catchability. When this index was low, catch rates were at their highest and there was a reduction in the area fished. In contrast, for FAD sets, catches increase when the patchiness index was low, implying a degree of random behaviour, potentially due to advances in FAD technology. An improved understanding of the spatial allocation of effort can improve catchability estimates widely used for fisheries stock assessments and in indices of global biodiversity.     

Fishing impact and environmental status in European seas: a diagnosis from stock assessments and ecosystem indicators

Stock‐based and ecosystem‐based indicators are used to provide a new diagnosis of the fishing impact and environmental status of European seas. In the seven European marine ecosystems covering the Baltic and the North‐east Atlantic, (i) trends in landings since 1950 were examined; (ii) syntheses of the status and trends in fish stocks were consolidated at the ecosystem level; and (iii) trends in ecosystem indicators based on landings and surveys were analysed. We show that yields began to decrease everywhere (except in the Baltic) from the mid‐1970s, as a result of the over‐exploitation of some major stocks. Fishermen adapted by increasing fishing effort and exploiting a wider part of the ecosystems. This was insufficient to compensate for the decrease in abundance of many stocks, and total landings have halved over the last 30 years. The highest fishing impact took place in the late 1990s, with a clear decrease in stock‐based and ecosystem indicators. In particular, trophic‐based indicators exhibited a continuous decreasing trend in almost all ecosystems. Over the past decade, a decrease in fishing pressure has been observed, the mean fishing mortality rate of assessed stocks being almost halved in all the considered ecosystems, but no clear recovery in the biomass and ecosystem indicators is yet apparent. In addition, the mean recruitment index was shown to decrease by around 50% in all ecosystems (except the Baltic). We conclude that building this kind of diagnosis is a key step on the path to implementing an ecosystem approach to fisheries management.     

基于渔船捕捞行为特征的远洋延绳钓渔场捕捞强度计算

渔场捕捞强度信息可以为渔业资源评估和管理提供帮助。本研究结合2017年10—11月船舶自动监控系统(AutomaticIdentificationSystem,AIS)信息和同期中国中西太平洋延绳钓渔船捕捞日志数据,通过挖掘延绳钓渔船作业航速和航向特征,建立渔场作业状态识别模型,提取渔场捕捞强度信息。以3～9节为航速阈值和0°～10°及300°～360°为航向阈值,渔船作业状态识别准确率为68.29%。阈值识别和日志记录的捕捞强度信息在空间上相关性很高(0.96),基于AIS信息挖掘的渔船捕捞强度空间分布特征和实际非常相似。阈值识别和日志记录的捕捞强度信息在空间上与单位捕捞努力量渔获量(catch per unite of effort, CPUE)、渔获尾数、渔获重量和投钩数的空间相关系数均大于0.62,基于AIS信息挖掘的渔船空间捕捞强度也可替代用于渔业资源分析。     

Ending overfishing while catching more fish

The world's seas and oceans are a vital source of animal protein from fishing and a major contributor to global food security. It has been argued that global wild‐catch production has reached its limit, and there is concern that many species are overfished. Concerns are also mounting about the state of marine ecosystems and the ecological impacts of fishing on them, with increasing efforts to protect marine biodiversity. Fisheries appear to be at an impasse – demand for seafood is rising but so is concern about the impacts of fishing. However, through a simple analysis, we show that global exploitation rates are well below long‐term sustainable levels at a whole ecosystem level. The oceans can support considerably higher sustainable catch than currently harvested. Overfishing has happened but only to a small fraction of species as a result of intensive and selective fishing. Shifting fishing effort away from highly targeted stocks towards currently underutilized species would reduce pressure on overfished species, result in fewer adverse ecosystem effects of fishing and increase overall fisheries production. This shift requires significant changes to our views about seafood, particularly in the developed world. We suggest ways in which this paradigm shift could happen and the range of expertise that would be required to achieve higher global yields with less ecological impact.     

A synthetic control approach to estimate the effect of total allowable catches in the high seas

Total allowable catch restrictions (hereafter referred to as catch quotas) play an important role in maintaining healthy fish stocks. While studies have identified a positive relationship between catch quota implementation and improved stock status, these methods are subject to selection bias as catch quotas are typically applied to stocks that are depleted. We address this challenge using the synthetic control method, which estimates the causal effect of catch quotas on fishing mortality and biomass by predicting a synthetic counterfactual outcome. We focus on high seas stocks (tunas, billfishes, and sharks) managed by tuna Regional Fisheries Management Organizations (tRFMOs), first providing an overview of stock status and current management measures in place. We find that implementation of catch quotas by tRFMOs has more than doubled over the past decade. Second, we predict the hypothetical fishing mortality and biomass trajectory for seven high seas quota-managed stocks in absence of a catch quota. These “synthetic non-quota stocks” are predicted using a weighted selection of high seas non-quota stocks. Credibility of the synthetic non-quota stocks is evaluated through diagnostic checks, and robustness tests assess sensitivity to study design. Five credible fishing mortality synthetic controls are predicted: three add support to the hypothesis that catch quotas successfully reduce fishing mortality, while two find that catch quotas increase fishing mortality. While our analysis is limited in scope, given that all seven quota-managed stocks are managed under a single tRFMO, we highlight the potential for the synthetic control method in fisheries management evaluation.     

Catching industrial fishing incursions into inshore waters of Africa from space

Small‐scale fisheries contribute substantially to the sustainability of coastal communities by providing livelihood and economic opportunities and ensuring food security. However, their geographic range of operation overlaps with that of industrial fisheries, increasing the resource competition, risk of vessel collision and inter‐sector conflicts, while jeopardizing the sustainability of fish stocks. When industrial vessels venture into waters that are reserved to artisanal fisheries, their operations become illegal. In Africa, the extent of such operations, beyond their legal implications, has resulted in severe economic, food security and maritime safety issues. In this paper, we use automatic identification system data derived from satellite technology to predict fishing operations and find that industrial fleets spend 3%–6% of their time fishing within inshore areas reserved for small‐scale fisheries between 2012 and 2016, of the total 4.2 million industrial fishing hours within the Exclusive Economic Zones of African countries. We assessed the total fishing effort by this form of illegal fishing operations at 166 million kWhours at least out of 4.9 billion kWhours in total. We discuss this dangerous form of illegal fishing, which often results in deadly collisions with small‐scale sector operators, increases competition and conflicts over fisheries access, threatens the sustainability of fish stocks, and calls for better governance, and protection.     

An interview‐based approach assessing interactions between seals and small‐scale fisheries informs the conservation strategy of the endangered Mediterranean monk seal

1. Small‐scale fisheries may pose a serious threat to the conservation of marine mammals. At the same time various factors have led to the decline of small‐scale fisheries, often making them unsustainable. Current rates of biodiversity loss and the reduction of fish stocks and fisheries dictate a thorough understanding of fisheries‐related issues and the implementation of effective management actions.
2. The Mediterranean monk seal is one of the most endangered marine mammals on Earth; its survival in the eastern Mediterranean Sea is threatened by negative interactions with fisheries. A nationwide questionnaire survey among fishers and port police authorities was carried out in Greece to describe the main characteristics of small‐scale fisheries, and to understand the nature and assess the magnitude of negative interactions between the monk seal and these fisheries. Questionnaire information was verified by a second round of interviews during landings.
3. The main attributes of the fishers, their fishing boats, and their practices were characteristic of the small‐scale fisheries sector. Overfishing was considered the main reason for fish‐stock reduction, and negative interactions with marine mammals was considered the main issue for the fishing sector.
4. Monk seals were present, caused damage, and got accidentally entangled in fishing gear throughout Greece. Damage to fishing gear was recorded mainly during spring and summer, and on average affected 21% of all fishing trips and 1% of nets deployed during a fishing trip.
5. Based on these results, the implementation of general and specific nationwide fishery management and conservation actions are proposed. These actions are mainly aimed at improving fish stock status, changing the behaviour of the fishers, and mitigating seal–fishery interactions in Greece, while promoting the recovery of the Mediterranean monk seal in the eastern Mediterranean Sea.

     

Co-management without involvement: the plight of fishing communities

This paper discusses the role of fishing communities in the stewardship of their adjacent fish resources, and the benefits associated with community participation in co‐management. Contrary to the view of most fisheries management agencies, local communities are able to design institutions that can successfully restore equity and limit access to the fishery. The dismissal of local concerns may be at the root of biological and social crises in fisheries, and the privatization of common fishing rights world‐wide through individual transferable quotas (ITQs) is contributing to these problems. Community involvement that is embedded into a network of management at larger spatial scales would allow fishing communities to regain some control over their livelihoods. Meaningful co‐management arrangements must go beyond consultation by redirecting the flow of social and economic benefits from the fishery back into communities. Unless geographically defined communities are allowed to share power and responsibility with government fisheries managers, both fish stocks and fishing as a way of life are in danger of vanishing.     

Quantifying fishing effort: a synthesis of current methods and their applications

The need to accurately quantify fishing effort has increased in recent years as fisheries have expanded around the world and many fish stocks and non‐target species are threatened with collapse. Quantification methods vary greatly among fisheries, and to date there has not been a comprehensive review of these methods. Here we review existing approaches to quantify fishing effort in small‐scale, recreational, industrial, and illegal, unreported and unregulated (IUU) fisheries. We present the strengths and limitations of existing methods, identifying the most robust methods and the critical knowledge gaps that must be addressed to improve our ability to quantify and map fishing effort. Although identifying the ‘best’ method ultimately depends on the intended application of the data, in general, quantification methods that are based on information on gear use and spatial distribution offer the best approaches to representing fishing effort on a broad scale. Integrating fisher’s knowledge and involving fishers in data collection and management decisions may be the most effective way to improve data quality and accessibility.     

Management effectiveness of large pelagic fisheries in the high seas

Large pelagic fishes are assessed and managed by tuna Regional Fisheries Management Organizations (tRFMOs). These organizations have been criticized for not meeting conservation objectives, which may relate to aspects of governance and management. No previous studies have systematically evaluated why management performance differs among tRFMOs and among stocks within each tRFMO. In this study, we collected data on the nature of research, management, enforcement and socioeconomics of management systems in the five principal tRFMOs of the world's oceans. We quantified influences of economic and fishery‐related factors on these management characteristics and examined how these factors vary among tRFMOs. We found that tRFMOs with a greater number of member countries, a greater economic dependency on tuna resources, a lower mean per capita gross domestic product, a greater number of fishing vessels and smaller vessels were associated with less intensive research, management and enforcement in these tuna fisheries. We also quantified the influence of specific management attributes and of biological, economic and fishery‐related factors on the trends and current status of large pelagic fish stocks in these regions. The most important factors correlated with trends and current stock status were external to the management systems, and included stock size, age at maturity, ex‐vessel price and economic dependency of countries on tuna fisheries. To improve the overall status of large pelagic fish stocks in the global high seas, more intensive data collection, research and management are needed in certain areas, especially in the Indian Ocean, and for certain stocks, especially non‐target species.     

Rebuilding Mediterranean fisheries: a new paradigm for ecological sustainability

In Mediterranean European countries, 85% of the assessed stocks are currently overfished compared to a maximum sustainable yield reference value (MSY) while populations of many commercial species are characterized by truncated size‐ and age‐structures. Rebuilding the size‐ and age‐structure of exploited populations is a management objective that combines single species targets such as MSY with specific goals of the ecosystem approach to fisheries management (EAF), preserving community size‐structure and the ecological role of different species. Here, we show that under the current fishing regime, stock productivity and fleet profitability are generally impaired by a combination of high fishing mortality and inadequate selectivity patterns. For most of the stocks analysed, a simple reduction in the current fishing mortality (F_cur) towards an MSY reference value (F_MSY), without any change in the fishing selectivity, will allow neither stock biomass nor fisheries yield and revenue to be maximized. On the contrary, management targets can be achieved only through a radical change in fisheries selectivity. Shifting the size of first capture towards the size at which fish cohorts achieve their maximum biomass, the so‐called optimal length, would produce on average between two and three times higher economic yields and much higher biomass at sea for the exploited stocks. Moreover, it would contribute to restore marine ecosystem structure and resilience to enhance ecosystem services such as reservoirs of biodiversity and functioning food webs.     

Size matters: How single-species management can contribute to ecosystem-based fisheries management

In this study we show how substantial gains towards the goals of ecosystem-based fisheries management (EBFM) can be achieved by different single-species management. We show that fishing has much less impact on stocks if fish are caught after they have reached the size (L_opt) where growth rate and cohort biomass are maximum. To demonstrate our point we compare the impact of three fishing scenarios on 9 stocks from the North Sea and the Baltic. Scenario (1) is the current fishing regime, scenario (2) is a new management regime proposed by the European Commission, aiming for maximum sustainable yield obtained from all stocks, and scenario (3) is set so that it achieves the same yield as scenario (2), albeit with fishing on sizes beyond L_opt. Results show that scenarios (2) and (3) are significant improvements compared to current fishing practice. However, scenario (3) consistently shows least impact on the stocks, with seven-fold higher biomass of demersal fishes and an age structure similar to an unfished stock. This allows juveniles and adults to better fulfil their ecological roles, a major step towards the goals of ecosystem-based fisheries management. We give examples where scenario (3) is practiced in successful fisheries. We present a new interpretation of the relative yield per recruit isopleth diagram with indication of a new target area for fisheries operating within the context of EBFM. We present a new expression of the relative biomass per recruit isopleth diagram, which supports our analysis. We conclude that size matters for precautionary and ecosystem-based fisheries management and present a list of additional advantages associated with fishing at L_opt.