Report card on ecosystem‐based fisheries management in tuna regional fisheries management organizations

International instruments of fisheries governance have set the core principles for the management of highly migratory fishes. We evaluated the progress of tuna Regional Fisheries Management Organizations (tRFMOs) in implementing the ecological component of ecosystem‐based fisheries management (EBFM). We first developed a best case tRFMO for EBFM implementation. Second, we developed criteria to evaluate progress in applying EBFM against this best case tRFMO. We assessed progress of the following four ecological components: target species, bycatch species, ecosystem properties and trophic relationships, and habitats. We found that many of the elements necessary for an operational EBFM are already present, yet they have been implemented in an ad hoc way, without a long‐term vision and a formalized plan. Overall, tRFMOs have made considerable progress monitoring the impacts of fisheries on target species, moderate progress for bycatch species, and little progress for ecosystem properties and trophic relationships and habitats. The tRFMOs appear to be halfway towards implementing the ecological component of EBFM, yet it is clear that the “low‐hanging fruit” has been plucked and the more difficult, but surmountable, issues remain, notably the sustainable management of bycatch. All tRFMOs share the same challenge of developing a formal mechanism to better integrate ecosystem science and advice into management decisions. We hope to further discussion across the tRFMOs to inform the development of operational EBFM plans.     

Individual transferable quotas and ecosystem‐based fisheries management: it’s all in the T

Recent articles in high‐profile journals advocating the widespread establishment of economic rights‐based approaches for managing fisheries has re‐kindled the debate over the efficacy of incentive‐based vs. regulatory‐based management approaches. Inspection of these works, written from the particular perspectives of economics, fisheries biology, or marine ecology, reveals that advocates of rights‐based regimes such as Individual Transferrable Quotas are sometimes recommending these policy instruments for quite different reasons. Hence, the advantageous attributes of rights‐based approaches from the perspective of one discipline may be quite different when seen from the perspective of another discipline. This is of concern as it exposes a tendency for particular disciplines to consider only the advantages of rights‐based approaches, such as establishing a harvest cap, but to implicitly discount the disadvantages such as less attention being paid to critical ecological and ecosystem issues.     

Key principles of ecosystem‐based management: the fishermen's perspective

Despite the growing popularity of ecosystem‐based management (EBM) in national legislation and in research and institutional literature, there is often an implementation gap ‘on the ground’, impeding widespread adoption in fisheries. This gap reflects in part the differing understandings of EBM held by fishermen and by management institutions. To explore and seek to close this gap, the underlying principles of EBM considered priorities by fishermen were systematically compared with the priorities identified in the published literature. The fishermen's priorities were determined by asking Atlantic Canadian fishermen to identify the EBM principles they consider most important. Four priority principles were identified: Sustainability, Stakeholder Involvement, Develop Long‐Term Objectives and Use of All Forms of Knowledge. The latter two were not frequently noted as priorities in the literature, while some literature priorities were less commonly chosen by fishermen, indicating a significant difference in perspectives on EBM. The rationale for fishermen's choice of priorities was explored by analysing the fishery management issues they raised – many directly connected to the above four priorities. In addition, another principle, Commit to Principles of Equity, often arose as an implicit priority among fishermen. We suggest that success in implementation of EBM may depend on reconciling differing priorities among its underlying principles, and combining knowledge and expertise from fishermen with research and institutional sources. The comparative methodology used here, which could be replicated elsewhere, should lead to better recognition of local challenges in EBM implementation and encourage support for EBM, to further its contribution to sustainable fisheries.     

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.     

Reference points for predators will progress ecosystem‐based management of fisheries

Ecosystem‐based management of fisheries aims to allow sustainable use of fished stocks while keeping impacts upon ecosystems within safe ecological limits. Both the FAO Code of Conduct for Responsible Fisheries and the Aichi Biodiversity Targets promote these aims. We evaluate implementation of ecosystem‐based management in six case‐study fisheries in which potential indirect impacts upon bird or mammal predators of fished stocks are well publicized and well studied. In particular, we consider the components needed to enable management strategies to respond to information from predator monitoring. Although such information is available in all case‐studies, only one has a reference point defining safe ecological limits for predators and none has a method to adjust fishing activities in response to estimates of the state of the predator population. Reference points for predators have been developed outside the fisheries management context, but adoption by fisheries managers is hindered a lack of clarity about management objectives and uncertainty about how fishing affects predator dynamics. This also hinders the development of adjustment methods because these generally require information on the state of ecosystem variables relative to reference points. Nonetheless, most of the case‐studies include precautionary measures to limit impacts on predators. These measures are not used tactically and therefore risk excessive restrictions on sustainable use. Adoption of predator reference points to inform tactical adjustment of precautionary measures would be an appropriate next step towards ecosystem‐based management.     

The pelagic habitat analysis module for ecosystem‐based fisheries science and management

We have developed a set of tools that operate within an aquatic geographic information system to improve the accessibility, and usability of remote‐sensed satellite and computer‐modeled oceanographic data for marine science and ecosystem‐based management. The tools form the Pelagic Habitat Analysis Module (PHAM), which can be applied as a modeling platform, an investigative aid in scientific research, or utilized as a decision support system for marine ecological management. Applications include fisheries, marine biology, physical and biological oceanography, and marine spatial management. The GIS provides a home for diverse data types and automated tools for downloading remote sensed and global circulation model data. Within the GIS environment, PHAM provides a framework for seamless interactive four‐dimensional visualization, for matching between disparate data types, for flexible statistic or mechanistic model development, and for dynamic application of user developed models for habitat, density, and probability predictions. Here we describe PHAM in the context of ecosystem‐based fisheries management, and present results from case study projects which guided development. In the first, an analysis of the purse seine fishery for tropical tuna in the eastern Pacific Ocean revealed oceanographic drivers of the catch distribution and the influence of climate‐driven circulation patterns on the location of fishing grounds. To support management of the Common Thresher Shark (Alopias vulpinus) in the California Current Ecosystem, a simple empirical habitat utilization model was developed and used to dynamically predict the seasonal range expansion of common thresher shark based on oceanographic conditions.     

Fishing operations and adaptive strategies of small‐scale fishers: insights for fisheries management in data‐poor situations

Small‐scale fisheries' management is complex given its multigear, multispecies nature; despite this, fishing effort has usually been controlled by nominal units, ignoring changes in effective fishing effort. This study aimed to understand the adaptive strategies of small‐scale fishers in San Felipe, Yucatan, Mexico through an analysis of their fishing operations. Minor changes in trip numbers among three seasons were observed, but increases in fishing time, depth and travel costs from one season to another at the operational level were found. It was also evident that high value species at the beginning of the season were gradually replaced by low‐value finfish as the season progresses. The results provide insights for new adaptive management strategies according to fisher's adaptive responses. For instance, using boats or fishing trips as fishing effort units in Yucatan may not be the most appropriated unit for management, as fishers adapt their strategies at different levels.     

Angler behaviour and implications for management ‐ catch‐and‐release among marine angling tourists in Norway

The role of recreational fisheries in the competition for marine resources is increasingly recognised. Their contribution in stock dynamics needs to be accounted for in assessments and management. Management regulations should be based on scientific advice on human and biological dimensions to be effective in reaching their goals. A survey among marine angling tourists staying in fishing camps in two study areas in Norway was conducted to study catch‐and‐release (C&R) behaviour. Although C&R has been assumed to be low in many marine recreational fisheries, this survey showed that for some species, more than 60% of the catch was released. As C&R may be associated with post‐release mortalities, the current management system could be inefficient towards its aim of reducing fishing mortality. It was concluded that it is necessary to quantify release mortalities, to consider C&R behaviour in future management decisions, and to minimise the potential negative impacts of C&R through handling guidelines.     

A framework for adaptive gear and ecosystem‐based management in the artisanal coral reef fishery of Papua New Guinea

• 1. Artisanal fishing on coral reefs in Papua New Guinea is an important livelihood activity that is managed primarily at the level of local communities. Pockets of overexploitation exist and are expected to increase with plans for increased commercialization.
• 2. This paper provides a current assessment of the artisanal multi‐species coral reef fishery by examining selectivity of the dominant gear, namely line fishing, spearguns, and gill nets. Each gear has its own strengths and weaknesses in terms of use and conservation of resources, with no clear problem gear.
• 3. The three gears utilize different resources but there was moderate overlap in the species caught, particularly between gill nets and line fishing and marginally between lines and spearguns. Gill nets have the disadvantage of being destructive to coral and the advantage of catching commercial species. Line fishing catches an intermediate number of species but mostly large‐bodied and predatory species that could potentially reduce predation and the mean trophic level of the fishery. Spearguns catch the highest numbers of species, including many non‐commercial and herbivorous fish and could reduce the diversity of fish and encourage algal growth.
• 4. This information could be used in combination with scientific monitoring and traditional ecological knowledge to develop an adaptive management framework that uses local restrictions on the various gears to restore or balance the fishery and ecosystem. Restrictions could be selectively imposed: on gill nets when coral cover is low, line fishing when large‐bodied predators are depleted, and spearguns when biodiversity is reduced and algal abundance high.

Copyright © 2008 John Wiley & Sons, Ltd.     

Measuring fish catch and consumption: Practical methods for small‐scale fisheries based on length as an alternative to weight‐based approaches

Small‐scale fisheries are recognised as making important contributions to nutrition and economic development despite a lack of accurate quantitative information on catches and consumption. While direct measurement remains the most appropriate way of collecting such data, it is impractical at large scales. Instead, household surveys based upon informant recall of fish caught and/or consumed are frequently used. However, the accuracy of weight recall by informants (even over short recall periods) has not been established. Using data from household surveys, the accuracy and precision of catch and consumption estimates derived from: (a) asking informants to recall weights of fish caught and (b) asking respondents to recall lengths of fish caught and converting to weight were tested. Length‐based methods, using visual aids to assist recall, were more accurate, precise and correctable. These methods could be useful for catch estimation, especially where fish are processed, sold or consumed shortly after capture.     

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.     

Using the same fish with different rules: A science‐based approach for improving management of recreational fisheries in a biodiversity hotspot of the Western South Atlantic

In this study we tested the hypothesis that Centropomus parallelus Poey moves between areas where fishing tourism is important, but the management rules for recreational fisheries are different. Fieldwork was conducted from May 2014 to June 2017 in an estuary located in the border between the states of São Paulo and Paraná, South‐Southeastern Brazil. Through a mark and recapture experiment, 2.000 individuals were tagged, of which 42 were recaptured. Among these, six fish were recaptured in Paraná, after being tagged in São Paulo, and a fish was recaptured in São Paulo, after being tagged in Paraná. These results support the hypothesis tested and indicate an uneven use of C. parallelus by anglers in both states. Thus, the use of the species and the recreational fisheries regulations need to be reviewed in the study area, taking into account the ability of C. parallelus to move across political boundaries and the importance of a fish‐oriented fisheries management regime.     

Primary fisheries management: a minimum requirement for provision of sustainable human benefits in small‐scale fisheries

The social and economic importance of small‐scale fisheries is frequently under‐valued, and they are rarely effectively managed. There is now growing consensus on how these fisheries could be managed for sustainability and to minimize the risks of crossing undesirable thresholds. Using a concept developed in health care, these approaches have been referred to as primary fisheries management. By encouraging the use of best‐available information in a precautionary way, the approaches will facilitate sustainable use and should therefore be encouraged, but they accept high scientific and implementation uncertainties as unavoidable because of limited management and enforcement resources and capacity. It is important to recognize that this limitation will result in social costs, because application of a precautionary approach in the face of high uncertainties will require forgoing potential sustainable benefits. Acceptance of primary fisheries management as a final and sufficient goal could therefore add a further constraint on the possibility of fishing communities escaping the poverty trap. Primary fisheries management should be seen as a first and minimum target for fisheries where there is currently no or inadequate management, but the longer‐term goal should still be well informed and adaptive management that strives for optimal benefits, referred to here as tertiary management.     

Comparing the management effectiveness of a marine park and a multiple‐use collaborative fisheries management area in East Africa

• 1. The coral reefs across the international border between Kenya and Tanzania, where historical differences in government policy and socio‐economic conditions created two different management systems, were examined: a large permanent closed area and a collaborative fisheries management project that used gear management and small voluntarily and temporary closed areas, respectively. The diversity and ecology of the reefs in these two management systems were compared spanning a seven‐year period to evaluate the effectiveness of the management and to assess the ecological response to a large‐scale water‐temperature anomaly in 1998.
• 2. Comparisons of rates of predation on sea urchins and of herbivory, using a seagrass assay, were made along with measures of benthic cover and fish abundance and diversity.
• 3. The collaborative fisheries management system was successful in increasing fish stocks, reducing erect algae, and maintaining ecological diversity and stability across the thermal anomaly. This management system, however, was not successful in protecting the expected full biodiversity of fish, predation rates on sea urchins, or the sensitive, branching coral species. Management of the fishery also increased fish stocks in the adjacent, large, permanently closed area, compared to Kenyan parks without this management.
• 4. The large, permanently closed area in the other system maintained high diversity, high predation rates on sea urchins and high herbivory rates, which maintained erect algae abundance and diversity at low levels. The temperature anomaly was destructive to a number of the dominant delicate branching coral species, but overall coral cover and diversity were maintained, although dominance switched from branching Porites spp. to Seriatopora spp. over this period. The large closed area system protected the undisturbed ecology of these reefs and associated ecological processes, and the full diversity of fish and coral, including sensitive species such as branching corals and slow‐growing fish.
• 5. Collaborative fisheries and large permanent closed area management have different attributes that, when combined, should achieve the multiple purposes of sustainable fisheries, ecosystem functions and protection of fishing‐sensitive species.

Copyright © 2005 John Wiley & Sons, Ltd.     

On scientists’ discomfort in fisheries advisory science: the example of simulation‐based fisheries management‐strategy evaluations

Scientists feel discomfort when they are asked to create certainty, where none exists, for use as an alibi in policy‐making. Recently, the scientific literature has drawn attention to some pitfalls of simulation‐based fisheries management‐strategy evaluation (MSE). For example, while estimates concerning central tendencies of distributions of simulation outcomes are usually fairly robust because they are conditioned on ample data, estimates concerning the tails of distributions (such as the probability of falling below a critical biomass) are usually conditional on few data and thus often rely on assumptions that have no strong knowledge base. The clients of scientific advice, such as the European Commission, are embracing the mechanization of the evaluation of proposed Harvest Control Rules against the precautionary principle and management objectives. Where the fisheries management institutions aim for simple answers from the scientists, giving ‘green/red light’ to a proposed management strategy, the scientists are forced into a split position between satisfying the demands of their advisory role and living up to the standards of scientific rigour. We argue against the mechanization of scientific advice that aims to incorporate all relevant processes into one big model algorithm that, after construction, can be run without circumspection. We rather encourage that fisheries advice should be a dynamic process of expert judgement, incorporating separate parallel concurrent, lines of scientific evidence, from quantitative and qualitative modelling exercises and factual knowledge of the biology and the fishery dynamics. This process can be formalized to a certain degree and can easily accommodate stakeholder viewpoints.     

Examining common assumptions about recruitment: a meta‐analysis of recruitment dynamics for worldwide marine fisheries

Assumptions about the future productivity of a stock are necessary to calculate sustainable catches in fisheries management. Fisheries scientists often assume the number of young fish entering a population (recruitment) is related to the biomass of spawning adults and that recruitment dynamics do not change over time. Thus, managers often use a target biomass based on spawning biomass as the basis for calculating sustainable catches. However, we show recruitment and spawning biomass are not positively related over the observed range of stock sizes for 61% of 224 stocks in the RAM Legacy Stock Assessment Database. Furthermore, 85% of stocks for which spawning biomass may not drive recruitment dynamics over the observed ranges exhibit shifts in average recruitment, which is often used in proxies for target biomasses. Our results suggest that the environment more strongly influences recruitment than spawning biomass over the observed stock sizes for many stocks. Management often endeavours to maintain stock sizes within the observed ranges, so methods for setting management targets that include changes within an ecosystem may better define the status of some stocks, particularly as climate changes.     

Ecosystem‐based fisheries management: A perspective on the critique and development of the concept

The concept of ecosystem‐based fisheries management (EBFM) has been subjected to debate since it was introduced in the late 1990s. The development of the concept seems to follow two separate but simultaneous trajectories of increased popularity but also sustained critique. This paper offers an analysis of potential mechanisms behind these disparate trajectories by drawing on a theoretical framework from science and technology studies (STS) centred around "black box" and actor‐network theory. To support our analysis, we perform an exploratory literature review of how the EBFM concept has been used in a selection of high impact fisheries research papers. We find that the popularity of EBFM does not guarantee its integrity, usefulness or analytical insight, but also that persistent critique of how the concept is used seems to be driving some change. We think that a continued trajectory of increased understanding, contextualization and discernibility of EBFM can help overcome the considerable ambiguity associated with the concept and make it increasingly useful to fisheries management. This means moving away from routine use of the term towards a practicable and tangible approach to improve fisheries sustainability.     

A comparative review of fisheries management experiences in the European Union and in other countries worldwide: Iceland,Australia, and New Zealand

This study compares the details and performance of fisheries management between the EU and a selection of other countries worldwide: Iceland, New Zealand, and Australia, which are considered in many respects to be among the most advanced in the world in fisheries management. Fisheries management in the EU, Iceland, Australia, and New Zealand has developed following different paths, despite being based on similar instruments and principles. Iceland, Australia, and New Zealand have been at the forefront of developing management practices such as stakeholder involvement, legally binding management targets (Australia, New Zealand), individual transferable quotas, and discard bans (Iceland, New Zealand). The EU has since the beginning of the 21st century taken significant steps to better involve stakeholders and establish quantitative targets through management plans, and a landing obligation is gradually being implemented from 2015 onward. The management of domestic fisheries resources in Australia, New Zealand, and Iceland has, overall, performed better than in the EU, in terms of conservation and economic efficiency. It should, however, be stressed that, compared to Australia, New Zealand, and Iceland, (i) initial over‐capacity was more of an issue in the EU when management measures became legally binding and also that (ii) EU has been progressive in developing common enforcement standards, on stocks shared by sovereign nations. The situation of EU fisheries has substantially improved over the period 2004–2013 in the northeast Atlantic, with fishery status getting close to that in the other jurisdictions, but the lack of recovery for Mediterranean fish stocks remains a concern.     

Fishers' experiences and perceptions of marine mammals in the South China Sea: Insights for improving community‐based conservation

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Combining fishers’ knowledge and cost‐effective monitoring tools in the management of marine recreational fisheries: A case study of the squid and cuttlefish fishery of the Ría of Vigo (NW Spain)

A new methodology based in the use of fishers’ knowledge and cost‐effective tools to obtain information about marine recreational fisheries (MRF) is presented. The squid and cuttlefish fishery of the Ría of Vigo (NW Spain) was selected because it is managed in a data‐poor environment. In‐depth interviews (57) were conducted with fishers, collecting ecological and socio‐economic information. A cartography of fishing grounds based on their knowledge was obtained, while the intensity of effort and catches was mapped by the monitoring of two vessels with low‐cost GPS data loggers. The 102 shore anglers and 248 recreational boats catch 8 t/year of European squid Loligo vulgaris and 11 t/year of common cuttlefish Sepia officinalis (11% of total catches on these species in the area). Shore anglers fish from 11 ports, while boat fishers use 14 fishing grounds (covering 30 km²). Most of the catches (86%) are landed by boats, and their CPUE is higher in the outer part of the Ría of Vigo. The use of fishers’ knowledge and cost‐effective monitoring is encouraged to obtain information for the management of MRF. Given the economic contribution of MRF (260,000 €/year in direct expenses), this activity should be considered in the regulations.