Multi-sector resource allocation and integrated management of abalone stocks in Western Australia: Review and discussion of management strategies

ABSTRACT:   Fishery policy formation is a multilateral political process that typically involves conflicting attitudes towards management, and opposing interests among resource users. As fisheries resources continue to decline, conflict between and within fishing sectors will grow. The challenge for fisheries policy makers is to ensure fisheries resources are evenly allocated among the stakeholders whilst managing resources in a sustainable manner. Australian fisheries management has been revolutionized by the introduction of Integrated Fisheries Management (IFM), which is based on a systematic approach involving the inclusion of all sectors in the management process. This approach means determining the total amount of fish that can be harvested from a fishery and then adopting management strategies for allocating explicit catch shares between the competing sectors. The recent increased burden on fisheries stocks, caused by higher recreational user participation, has forced policy makers to make large changes relating to the allocation of resources. Policy makers in Western Australia, aware of conflict developing between users of the abalone resource, developed a unique management system based on resource sharing. By integrating the recreational sector in the overall management process, the primary objective of the new agenda is to decrease conflict between competing users and develop a management system without partisanship.     

Opportunities for agent‐based modelling in human dimensions of fisheries

Models of human dimensions of fisheries are important to understanding and predicting how fishing industries respond to changes in marine ecosystems and management institutions. Advances in computation have made it possible to construct agent‐based models (ABMs)—which explicitly describe the behaviour of individual people, firms or vessels in order to understand and predict their aggregate behaviours. ABMs are widely used for both academic and applied purposes in many settings including finance, urban planning and the military, but are not yet mainstream in fisheries science and management, despite a growing literature. ABMs are well suited to understanding emergent consequences of fisher interactions, heterogeneity and bounded rationality, especially in complex ecological, social and institutional contexts. For these reasons, we argue that ABMs of human behaviour can contribute significantly to human dimensions of fisheries in three areas: (a) understanding interactions between multiple management institutions; (b) incorporating cognitive and behavioural sciences into fisheries science and practice; and (c) understanding and projecting the social consequences of management institutions. We provide simple examples illustrating the potential for ABMs in each of these areas, using conceptual (“toy”) versions of the POSEIDON model. We argue that salient strategic advances in these areas could pave the way for increased tactical use of ABMs in fishery management settings. We review common ABM development and application challenges, with the aim of providing guidance to beginning ABM developers and users studying human dimensions of fisheries.     

Reconstructing overfishing: Moving beyond Malthus for effective and equitable solutions

Inaccurate or incomplete diagnosis of the root causes of overfishing can lead to misguided and ineffective fisheries policies and programmes. The “Malthusian overfishing narrative” suggests that overfishing is driven by too many fishers chasing too few fish and that fishing effort grows proportionately to human population growth, requiring policy interventions that reduce fisher access, the number of fishers, or the human population. By neglecting other drivers of overfishing that may be more directly related to fishing pressure and provide more tangible policy levers for achieving fisheries sustainability, Malthusian overfishing relegates blame to regions of the world with high population growth rates, while consumers, corporations and political systems responsible for these other mediating drivers remain unexamined. While social–ecological systems literature has provided alternatives to the Malthusian paradigm, its focus on institutions and organized social units often fails to address fundamental issues of power and politics that have inhibited the design and implementation of effective fisheries policy. Here, we apply a political ecology lens to unpack Malthusian overfishing and, relying upon insights derived from the social sciences, reconstruct the narrative incorporating four exemplar mediating drivers: technology and innovation, resource demand and distribution, marginalization and equity, and governance and management. We argue that a more nuanced understanding of such factors will lead to effective and equitable fisheries policies and programmes, by identifying a suite of policy levers designed to address the root causes of overfishing in diverse contexts.     

Understanding fisheries credit systems: potentials and pitfalls of managing catch efficiency

Following implementation in a range of other resource sectors, a number of credit‐like systems have been proposed for fisheries. But confusion exists over what constitutes these nascent ‘fisheries credit’ systems and how they operate. Based on a review of credit systems in other sectors, this study fills this gap by defining how credit systems function and what credits add to prevailing fisheries management. In doing so, we distinguish ‘mitigation’ and ‘behavioural’ fishery credits. Mitigation credits require resource users to compensate for unsustainable catches of target species, by‐catch species or damaging practices on the marine environment by investing in conservation in a biologically equivalent habitat or resource. Behavioural credit systems incentivize fishers to gradually change their fishing behaviour to more sustainable fishing methods by rewarding them with, for instance, extra fishing effort to compensate for less efficient but more sustainable fishing methods. The choice of credit system largely depends on the characteristics of specific fisheries and the management goals agreed upon by managers, scientists and the fishing industry. The study concludes that fisheries credit systems are different but complimentary to other forms of management by focusing on ‘catchability’ or gear efficiency in addition to effort or catch quota, affecting overall economic efficiency by setting specific goals as to how fish are caught. Credit systems therefore incentivize specific management interventions that can directly improve stock sustainability, conserve habitat and endangered species, or decrease by‐catch.     

Complex dynamics may limit prediction in marine fisheries

Complex nonlinear dynamics in marine fisheries create challenges for prediction and management, yet the extent to which they occur in fisheries is not well known. Using nonlinear forecasting models, we analysed over 200 time series of survey abundance and landings from two distinct ecosystems for patterns of dynamic complexity (dimensionality and nonlinear dynamics) and predictability. Differences in system dimensionality and nonlinear dynamics were associated with time series that reflected human intervention via fishing effort, implying the coupling between human and natural systems generated dynamics distinct from those detected in the natural resource subsystem alone. Estimated dimensionality was highest for landings and higher in abundance indices of unfished species than fished species. Fished species were more likely to display nonlinear dynamics than unfished species, and landings were significantly less predictable than abundance indices. Results were robust to variation in life history characteristics. Dynamics were predictable over a 1‐year time horizon in seventy percent of time series, but predictability declined exponentially over a 5‐year horizon. The ability to make predictions in fisheries systems is therefore extremely limited. To our knowledge, this is the first cross‐system comparative study, and the first at the scale of individual species, to analyse empirically the dynamic complexity observed in fisheries data and to quantify predictability broadly. We outline one application of short‐term forecasts to a precautionary approach to fisheries management that could improve how uncertainty and forecast error are incorporated into assessment through catch limit buffers.     

Opportunities to improve fisheries management through innovative technology and advanced data systems

Fishery‐dependent data are integral to sustainable fisheries management. A paucity of fishery data leads to uncertainty about stock status, which may compromise and threaten the economic and food security of the users dependent upon that stock and increase the chances of overfishing. Recent developments in the technology available to collect, manage and analyse fishery‐relevant data provide a suite of possible solutions to update and modernize fisheries data systems and greatly expand data collection and analysis. Yet, despite the proliferation of relevant consumer technology, integration of technologically advanced data systems into fisheries management remains the exception rather than the rule. In this study, we describe the current status, challenges and future directions of high‐tech data systems in fisheries management in order to understand what has limited their adoption. By reviewing the application of fishery‐dependent data technology in multiple fisheries sectors globally, we show that innovation is stagnating as a result of lack of trust and cooperation between fishers and managers. We propose a solution based on a transdisciplinary approach to fishery management that emphasizes the need for collaborative problem‐solving among stakeholders. In our proposed system, data feedbacks are a key component to effective fishery data systems, ensuring that fishers and managers collect, have access to and benefit from fisheries data as they work towards a mutually agreed‐upon goal. A new approach to fisheries data systems will promote innovation to increase data coverage, accuracy and resolution, while reducing costs and allowing adaptive, responsive, near real‐time management decision‐making to improve fisheries outcomes.     

Thirty years of change and the future of Alaskan fisheries: Shifts in fishing participation and diversification in response to environmental,regulatory and economic pressures

Heterogeneity in human responses and decision‐making can contribute to the resilience of social–ecological systems in the face of environmental, political and economic pressures. In fishery systems worldwide, the ability of harvesters to maintain a diverse portfolio of fishing strategies is important for building adaptive capacity. We used a case‐study approach to examine the complexity of factors that inhibit or promote diversification in fisheries of Alaska, one of the major fishing regions of the world. Through a combination of harvest records and literature review, we explored shifts in participation and portfolio diversity in Alaskan fisheries over three decades. The four case‐studies examined the responses of fishers, fleets and communities to multiple, intersecting pressures, including biological declines, market and price dynamics, fishery privatization and the 1989 Exxon Valdez oil spill. These cases illustrate how stressors acting at multiple scales can encourage or constrain opportunities for diversification, and that these opportunities may be spread inequitably across participants. Overall, we found evidence for reduced participation and increasing specialization in Alaskan commercial fisheries. While numerous factors explain these trends, policies like individual quota systems and the increasing cost of entry into fisheries are forcing consolidation at local to regional scales. A portfolio approach to managing fisheries that reduces barriers to diversification and includes broad representation of resource users and communities in management may help to maintain opportunity and choice for fishers.     

Tenure and taboos: origins and implications for fisheries in the Pacific

We present demographic, social, historical and ecological data to challenge the generalization that traditional tenure and fishing taboos constitute cultural adaptations that evolved to prevent over‐harvesting of subsistence fisheries in the Pacific. In particular, we re‐examine the seminal and widely cited arguments of Johannes (Annual Review of Ecology and Systematics 1978; 9 , 349–364), which constructed tenure and taboos primarily as traditional fishery management tools for the entire Pacific region. While it is difficult to disprove Johannes’ logic for some sites, particularly in formerly densely populated parts of Polynesia and Micronesia, our review of data and literature for Melanesia indicate very different origins and functions for these institutions. Our study shows that human population densities in most of the Western Pacific prior to European colonial intrusions were too low to have generated sufficient fishing pressure to drive the evolution of a conservation ethic. Our review for Melanesia shows that customary marine tenure and fishing taboos are primarily designed to manage relationships between social groups, rather than to sustain food security from fisheries. We argue that proper recognition of the cultural role of tenure and taboos is critical to progressing marine resource management in Melanesia.     

Exploring the ‘public goods game’ model to overcome the Tragedy of the Commons in fisheries management

In situations of declining or depleted fish stocks, exploiters seem to have fallen prey to the Tragedy of the Commons, which occurs when the maximisation of short‐term self‐interest produces outcomes leaving all participants worse off than feasible alternatives would. Standard economic theory predicts that in social dilemmas, such as fishing from a common resource, individuals are not willing to cooperate and sacrifice catches in the short term, and that, consequently, the resource is overharvested. However, over the last decades, a multitude of research has shown that humans often achieve outcomes that are ‘better than rational’ by building conditions where reciprocity, reputation, and trust help to overcome the temptations of short‐term self‐interest. The evolution of the natural human tendency to cooperate under certain conditions can be explained, and its neuro‐physiological and genetic bases are being unravelled. Nevertheless, fisheries management still often deploys top‐down regulation and economic incentives in its aim to regulate fisher behaviour, and under‐utilizes the potential for spontaneous responsible fisher behaviour through setting conditions that enhance natural cooperative tendencies. Here I introduce this body of knowledge on how to overcome the Tragedy of the Commons to the audience of fisheries scientists, hoping to open up novel ways of thinking in this field. I do this through a series of thought experiments, based on actual published experiments, exploring under what conditions responsible and cooperative fisher behaviour can be expected. Keys include reputation‐building and indirect reciprocity, face‐to‐face communication, knowledge on the state of the resource, and self‐decision on rules and sanctions.     

Perceptions of fishing access restrictions and the disparity of benefits among stakeholder communities and nations of south‐eastern Africa

Achieving high compliance with resource‐use management policies is a critical concern to achieving sustainability, particularly in poor countries. Willingness to comply may depend on the values and perceptions of benefits and legitimacy of the restrictions. Consequently, we interviewed and evaluated the perceptions of fishing restrictions among ~2100 marine fisheries stakeholders (resource users and managers) in 102 fishing villages in Kenya, Madagascar, Mozambique and Tanzania. We hypothesized that perceived benefits would decline and social inequity increase along a hypothesized gradient of increasing access restriction – ranging from minimum size of fish to fisheries closures. Managers did not recognize the hypothesized access restriction gradient, seeing most restrictions as beneficial, but with some nation‐specific distinctions. Village‐level responses of resource users varied by country, and overall perceived benefits of access restrictions increased with the wealth, education and membership in fishing organizations. In Kenya and Tanzania, some communities with views that differed greatly from managers were, in places, found near marine protected areas and they perceived more benefits accruing to the government than resource users for the strongest access restrictions. Madagascar and Mozambique fishing villages had low between‐community variability, and their responses did not reflect the hypothesized restriction gradient or strong social disparity, which may reflect limited practical experience with restrictions. These results suggest that countries with stronger central governments contained villages with more between‐community variability and perceived social disparity than weaker governments. We argue that transparent negotiations with stakeholders about the scales of costs and benefits should increase compliance with selected fisheries regulations.     

Does MPA mean ‘Major Problem for Assessments'? Considering the consequences of place‐based management systems

Marine protected areas (MPAs) have been increasingly proposed, evaluated and implemented as management tools for achieving both fisheries and conservation objectives in aquatic ecosystems. However, there is a challenge associated with the application of MPAs in marine resource management with respect to the consequences to traditional systems of monitoring and managing fisheries resources. The place‐based paradigm of MPAs can complicate the population‐based paradigm of most fisheries stock assessments. In this review, we identify the potential complications that could result from both existing and future MPAs to the science and management systems currently in place for meeting conventional fisheries management objectives. The intent is not to evaluate the effects of implementing MPAs on fisheries yields, or even to consider the extent to which MPAs may achieve conservation oriented objectives, but rather to evaluate the consequences of MPA implementation on the ability to monitor and assess fishery resources consistent with existing methods and legislative mandates. Although examples are drawn primarily from groundfish fisheries on the West Coast of the USA, the lessons are broadly applicable to management systems worldwide, particularly those in which there exists the institutional infrastructure for managing resources based on quantitative assessments of resource status and productivity.     

Reconciling sustainability,economic efficiency and equity in fisheries: the one that got away?

Concern about the global state of fisheries and fish resources has highlighted the three primary considerations in fisheries management: sustainable utilisation, economic efficiency and equity in access to resources. We appear to be failing in pursuit of all three goals. Living marine resources are particularly threatened by overfishing, leading to many of the world’s fish stocks being heavily, fully or over exploited. Similarly, the economic diagnosis is that costs of fishing exceeded the value of the world’s catch by about US$ 40 billion at the beginning of the decade. Statistics on equity are less available, but the necessary spread of limited access to fisheries frequently has the greatest impact on the small scale, traditional fisher. This paper considers the reasons underlying the general failure of fisheries management and the solutions that are being proposed. Factors contributing to the problems include high biological uncertainty, conflict between the constraint of sustainability and social and economic priorities, poorly defined objectives, and institutional failures related to access rights and participation in management by the users. These issues point to the real complexity of fisheries management. It is argued that this complexity can be abused by all interest groups to avoid responsibility and to suit their own objectives. It is suggested that there are eight simple principles controlling fisheries management that are generally well‐understood and, if properly considered in fisheries management systems, would lead to improved performances. Responsible management will, however, only be effective if there is a genuine desire to achieve the objectives. Fishing capacity, frequently reflecting dependency of users on fisheries resources, is commonly in excess of the sustainable production of the resources. Excess dependency can preclude the political will to consider alternative strategies and only once it has been overcome, probably requiring solutions borrowed from outside fisheries, is effective management likely to be considered seriously. Thereafter, responsible management requires setting unambiguous objectives and management measures in co‐operation with users and other interest groups. The agreed strategy must be included in legislation to ensure transparency and accountability and to constrain decision‐makers. The performance of the strategy must be monitored and revised as necessary.     

Measuring uncertainty in fisheries stock assessment: the delta method,bootstrap, and MCMC

Fisheries management depends on reliable quantification of uncertainty for decision‐making. We evaluate which uncertainty method can be expected to perform best for fisheries stock assessment. The method should generate confidence intervals that are neither too narrow nor too wide, in order to cover the true value of estimated quantities with a probability matching the claimed confidence level. This simulation study compares the performance of the delta method, the bootstrap, and Markov chain Monte Carlo (MCMC). A statistical catch‐at‐age model is fitted to 1000 simulated datasets, with varying recruitment and observation noise. Six reference points are estimated, and confidence intervals are constructed across a range of significance levels. Overall, the delta method and MCMC performed considerably better than the bootstrap, and MCMC was the most reliable method in terms of worst‐case performance, for our relatively data‐rich scenario and catch‐at‐age model, which was not subject to substantial model misspecification. All three methods generated too narrow confidence intervals, underestimating the true uncertainty. Bias correction improved the bootstrap performance, but not enough to match the performance of the delta method and MCMC. We recommend using MCMC as the default method for quantifying uncertainty in fisheries stock assessment, although the delta method is the fastest to apply, and the bootstrap is useful to diagnose estimator bias.     

Behavioural diversity in fishing—Towards a next generation of fishery models

Despite improved knowledge and stricter regulations, numerous fish stocks remain overharvested. Previous research has shown that fisheries management may fail when the models and assessments used to inform management are based on unrealistic assumptions regarding fishers' decision‐making and responses to policies. Improving the understanding of fisher behaviour requires addressing its diversity and complexity through the integration of social science knowledge into modelling. In our paper, we review and synthesize state‐of‐the‐art research on both social science's understanding of fisher behaviour and the representation of fisher decision‐making in scientific models. We then develop and experiment with an agent‐based social–ecological fisheries model that formalizes three different fishing styles. Thereby we reflect on the implications of our incorporation of behavioural diversity and contrast it with the predominant assumption in fishery models: fishing practices being driven by rational profit maximizing. We envision a next generation of fisheries models and management that account for social scientific knowledge on individual and collective human behaviours. Through our agent‐based model, we demonstrate how such an integration is possible and propose a scientific approach for reducing uncertainty based on human behavioural diversity in fisheries. This study serves to lay the foundations for a next generation of social–ecological fishery models that account for human behavioural diversity and social and ecological complexity that are relevant for a realistic assessment and management of fishery sustainability problems.     

Illustrating the critical role of human dimensions research for understanding and managing recreational fisheries within a social‐ecological system framework

Effective management of recreational fishing requires understanding fishers and their actions. These actions constitute critical links between social and ecological systems that result in outcomes that feedback and influence recreational fishers' actions and the management of these actions. Although much research exists on recreational fishers and their actions, this research is often disconnected from management issues. One way to help to overcome this disconnect is to illustrate how past research on the social component of recreational fishing fits within an emerging coupled social‐ecological system (SES) framework. Herein, a conceptual SES is first developed with specific attention to recreational fisheries. This SES is then used to illustrate the importance of considering human dimensions research for articulating, studying and ultimately managing key outcomes of recreational fisheries (e.g. fish population conservation, fisher well‐being) using the example of harvest regulations and a brief review of past interdisciplinary research on recreational fishing. The article ends by identifying key research needs including understanding: how factors such as management rules affect the diversity of actions by recreational fishers; how governance and management approaches adapt to changing social and resource conditions; and how recreational fishers learn and share information.     

Beyond Individual Transferrable Quotas: methodologies for integrating ecosystem impacts of fishing into fisheries catch rights

While there has been a growing concern for the adverse ecological impacts of fishing, progress on incorporating these into operational fisheries management has been slow. Many fisheries management organizations have addressed the problem of overharvesting and over‐capitalization first. In this domain, the question of access regulation has gained growing recognition as a key dimension of fisheries sustainability, leading to recommendation and progressive implementation of rights‐based systems, in particular Individual Transferrable Quotas (ITQs). While adjustments in fishing capacity resulting from the implementation of these systems may entail a reduction in some unwanted ecosystem impacts of fishing, it is also recognized that they will not be sufficient to achieve the ecological outcomes increasingly demanded by the global community. There is thus a need to examine the possibilities for a common management framework for dealing with both over‐capitalization of fisheries and adverse ecological effects of fishing. In this paper, we examine the feasibility of incorporating greater ecosystem goods and services into ITQ policy instruments initially designed with a narrow focus on commercial target species. We consider the advantages and limitations of alternative approaches in this respect and identify some of the practical issues associated with the different alternatives, in particular the underpinning knowledge requirements. We argue that given the need for increasingly streamlined management processes, further investigation into practical ways forward in this domain is crucial if management of fisheries is to achieve economic efficiency while fully encompassing the ecologically sustainable development objectives of ecosystem‐based fisheries management.     

A framework for results‐based management in fisheries

We present a framework for results‐based management (RBM) of commercial fisheries. The core idea of RBM is to reduce micromanagement by delegating management responsibility to resource users. The RBM framework represents an industrial organization approach to co‐management and comprises three defining processes, conducted by three independent “agents”: (i) an “authority” defines specific and measurable and achievable objectives (outcome targets, OTs) for the utilization of fisheries resources, (ii) resource user organizations (termed “operators”) take responsibility for achieving these OTs and provide documentation that (iii) allows independent “auditors” to evaluate the achievement of OTs. Using incentive mechanisms, notably deregulation, RBM grants operators the flexibility to develop and implement innovative and cost‐effective ways to achieve OTs. The feasibility of implementing RBM in five European fisheries was investigated in cooperation with relevant stakeholders through artificial planning processes and computer simulations. The operators involved were enthusiastic, and new management plans were drafted based on the framework. These included socioeconomic OTs in addition to traditional stock objectives, encompassing an ecosystem approach. Several issues are in need of further research to consolidate the approach and prepare the ground for practical implementation, including: the specification of the legal and regulatory framework required to underpin RBM, details of transitional arrangements when shifting towards RBM (including cost‐sharing) and the development of necessary organizational capacity for operators. Initially, we therefore envisage the framework being applied to high‐value single‐species fisheries, with a limited number of participants, which are adequately represented by a competent organization.     

Modelling angler behaviour as a part of the management system: synthesizing a multi‐disciplinary literature

It is often said that managing fisheries is managing people. This truism implies that fisheries science inherently involves disciplines that focus on fish and their population dynamics, humans and their behaviour, and policy and decision making. This is particularly true for recreational fisheries, where the human behavioural motivation and human response to management actions may be more difficult to predict than in commercial fisheries. We provide a synthesis of the multi‐disciplinary literature on modelling recreational angler behaviour to inform management of recreational fisheries. We begin by defining the recreational fisheries system in an interdisciplinary manner. We then assess the literature for empirical evidence of disciplinary crossover. Using bibliometric data, we provide evidence that there is little disciplinary crossover, particularly between fisheries biology, including applied ecology, and quantitative social science, including economics. We identify critical barriers to disciplinary crossover, such as database indexing issues and nomenclature. Next, we provide a review of critical contributions to the literature, and locate these contributions within our interdisciplinary conceptualization of the recreational fisheries system. This synthesis is intended to be a cross‐disciplinary bridge to facilitate access to the broader literature on modelling angler behaviour, with the ultimate goal of improving recreational fisheries management.     

Reconciling traditional inland fisheries management and sustainability in industrialized countries, with emphasis on Europe

In northern industrialized countries, the inland fisheries sector has long been dominated by recreational fisheries, which normally exploit fish for leisure or subsistence and provide many (poorly investigated) benefits to society. Various factors constrain the development and existence of inland fisheries, such as local user conflicts, low social priority and inadequate research and funding. In many cases, however, degradation of the environment and loss of aquatic habitat are the predominant concerns for the sustainability of inland fisheries. The need for concerted effort to prevent and reduce environmental degradation, as well as conservation of freshwater fish and fisheries as renewable common pool resources or entities in their own right is the greatest challenge facing sustainable development of inland waters. In inland fisheries management, the declining quality of the aquatic environment coupled with long‐term inadequate and often inappropriate fisheries management has led to an emphasis on enhancement practices, such as stocking, to mitigate anthropogenic stress. However, this is not always the most appropriate management approach. Therefore, there is an urgent need to alter many traditional inland fisheries management practices and systems to focus on sustainable development. This paper reviews the literature regarding the inputs needed for sustainability of inland fisheries in industrialized countries. To understand better the problems facing sustainable inland fisheries management, the inland fisheries environment, its benefits, negative impacts and constraints, as well as historical management, paradigms, trends and current practices are described. Major philosophical shifts, challenges and promising integrated management approaches are envisaged in a holistic framework. The following are considered key elements for sustainable development of inland fisheries: communication, information dissemination, education, institutional restructuring, marketing outreach, management plans, decision analysis, socioeconomic evaluation and research into the human dimension, in addition to traditional biological and ecological sciences. If these inputs are integrated with traditional fisheries management practices, the prospects for sustainability in the inland fisheries will be enhanced.