Keeping watch on the unwatchable: technological solutions for the problems generated by ecosystem-based management

Ecosystem‐based management is an emerging paradigm influencing the management of commercial fisheries. Increasingly, developed nations are adopting explicit legislation and policy governing the assessment and management of their fisheries against criteria of ecological sustainability. Yet the ability to evaluate ecosystem impacts of fisheries is compromised by a general lack of understanding of marine ecosystem function (beyond the population level) and a lack of robust and practical indicators for ecosystem health and management. Recent technological advances can assist in developing criteria, including structural analyses of seafloor communities potentially impacted by fishing gears (e.g. demersal trawling). Similarly, advances in fishing gear technology, including improved selectivity and the development of gears which have a more benign environmental impact, can mitigate some of the ecological impacts of fishing. Such technological advances are summarized in the context of contemporary fisheries management.     

Evolution of marine fisheries management in China from 1949 to 2019: How did China get here and where does China go next?

China is the world’s biggest fishing nation and a major player in the global seafood trade. Its fisheries development can decisively influence the global seafood trade, food security and marine conservation. In recent years, significant changes have taken place in China’s fisheries management priorities, policies and regulations. In this paper, we review the evolving fisheries management practices in China to delineate changes in the management policies, methods and their performances from 1949 to 2019. We determined that the following issues impede the development, implementation and enforcement of fisheries policies and regulations, namely the large size of the fishing fleet, large and poorly organized fisheries population, the “hidden” fishing capacity, uniform management approaches that sometimes fail to account for local conditions, lack of clearly defined and allocated fishing rights, limited data quality and availability, insufficient fisheries monitoring programmes, absence of a robust scientific input framework and insufficient stakeholder involvement. Combining those problems with China’s current management initiatives, we propose recommendations for China’s future fisheries reforms. We hope this paper can inform China’s marine fisheries policies and provide valuable references for further researches related to China’s sustainable fisheries management.     

Global reduction fisheries and their products in the context of sustainable limits

Globally, one‐sixth of landings from marine capture fisheries are destined for the production of fishmeal and fish oil (FMFO), which are currently overwhelming utilized by fed aquaculture. Many different species are used globally for the production of FMFO, but little concern has been given to the divergent environmental and ecological impacts of FMFO products based on species, ecosystem and fishing gear used in their capture. We evaluated the variable environmental performance of FMFO products from a wide range of fisheries whose products are either primarily intended for reduction or whose by‐products are redirected to reduction. Assessed fisheries accounted for 44% of global reduction fishery landings in 2014. Analysis was conducted on the basis of two measures: the carbon footprint (i.e., greenhouse gas [GHG] emissions) and the marine footprint (i.e., primary production required [PPR]). We found large differences between the impacts of FMFO products across the 18 reduction fisheries examined. Cumulatively, we estimate that reduction fisheries emitted 4.6 million tonnes of CO₂‐e GHGs in 2014, and appropriated over 4% of primary production in some ecosystems, demonstrating a non‐trivial impact. As demand for aquafeeds grow, the sustainable sourcing of raw material inputs will be of great importance. Results here suggest that the source of FMFO inputs can have dramatic effects on the environmental performance of fish feeds and fed aquaculture. We recommend further research on the environmental and ecological impacts of food production systems, and specifically to understand these results in relation to global production and sustainable boundaries.     

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.     

Retrospective analysis of the influence of environmental drivers on commercial stocks and fishing opportunities in the Irish Sea

Irish Sea fisheries have undergone considerable change in recent years following the decline of commercially important finfish stocks and their slow response to management's recovery plans. In 2015, the fishing industry called for a holistic exploration into the impact of environmental change and food web effects to identify the drivers underpinning stock dynamics. In this study, we identify correlations between large‐scale climatic indicators, temperature, primary and secondary productivity, and fish recruitment in the Irish Sea and incorporate them into an Ecopath with Ecosim food web model co‐created by scientists and fishers. Negative correlations were found between the North Atlantic Oscillation winter index (NAOw) and large zooplankton abundance and between the Atlantic Multidecadal Oscillation (AMO) and the recruitment of cod (Gadus morhua) and whiting (Merlangius merlangus). Using correlation analyses to direct the addition of environmental drivers to the Irish Sea ecosystem model improved the models fit against observed biomass and catch data and revealed the indirect impacts of environmental change as mitigated through trophic interactions. Model simulations suggest that historic environmental change suppressed the overall production of commercial finfish, limiting opportunities for the fishing industry, whilst also dampening the rate of stock recovery despite marked reductions in fishing effort. These results suggest that failure to account for ecosystem information may lead to misconceived expectations and flawed fisheries management; therefore, there is a need to operationalize ecosystem information through management procedures to support fisheries advice.     

Collateral damage? Small‐scale fisheries in the global fight against IUU fishing

Concern over illegal, unreported and unregulated (IUU) fishing has led to a number of policy, trade and surveillance measures. While much attention has been given to the impact of IUU regulation on industrial fleets, recognition of the distinct impacts on small‐scale fisheries is conspicuously lacking from the policy and research debate. In this paper, we outline three ways in which the application of IUU discourse and regulation undermines small‐scale fisheries. First, the mainstream construction of “illegal,” “unreported” and “unregulated” fishing, and also the categorical use of “IUU” in an all‐inclusive sense, disregards the diversity, legitimacy and sustainability of small‐scale fisheries practices and their governing systems. Second, we explore how the recent trade‐related measures to counter IUU fishing mask and reinforce existing inequalities between different sectors and countries, creating an unfair burden on small‐scale fisheries and countries who depend on them. Third, as IUU fishing is increasingly approached as “organized crime,” there is a risk of inappropriately targeting small‐scale fisheries, at times violently. Reflecting on these three trends, we propose three strategies by which a more sensitive and ultimately more equitable incorporation of small‐scale fisheries can be supported in the global fight against IUU fishing.     

Ecological indicators for coral reef fisheries management

Coral reef fisheries are of great importance both economically and for food security, but many reefs are showing evidence of overfishing, with significant ecosystem‐level consequences for reef condition. In response, ecological indicators have been developed to assess the state of reef fisheries and their broader ecosystem‐level impacts. To date, use of fisheries indicators for coral reefs has been rather piecemeal, with no overarching understanding of their performance with respect to highlighting fishing effects. Here, we provide a review of multispecies fishery‐independent indicators used to evaluate fishing impacts on coral reefs. We investigate the consistency with which indicators highlight fishing effects on coral reefs. We then address questions of statistical power and uncertainty, type of fishing gradient, scale of analysis, the influence of other variables and the need for more work to set reference points for empirical, fisheries‐independent indicators on coral reefs. Our review provides knowledge that will help underpin the assessment of the ecological effects of fishing, offering essential support for the development and implementation of coral reef fisheries management plans.     

Assessing and managing data‐limited ornamental fisheries in coral reefs

Coral reefs support numerous ornamental fisheries, but there are concerns about stock sustainability due to the volume of animals caught. Such impacts are difficult to quantify and manage because fishery data are often lacking. Here, we suggest a framework that integrates several data‐poor assessment and management methods in order to provide management guidance for fisheries that differ widely in the kinds and amounts of data available. First, a resource manager could assess the status of the ecosystem (using quantitative metrics where data are available and semi‐quantitative risk assessment where they are not) and determine whether overall fishing mortality should be reduced. Next, productivity susceptibility analysis can be used to estimate vulnerability to fishing using basic information on life history and the nature of the fishery. Information on the relative degree of exploitation (e.g. export data or ratios of fish density inside and outside no‐take marine reserves) is then combined with the vulnerability ranks to prioritize species for precautionary management and further analysis. For example, species that are both highly exploited and vulnerable are good candidates for precautionary reductions in allowable capture. Species that appear to be less vulnerable could be managed on a stock‐specific basis to prevent over‐exploitation of some species resulting from the use of aggregate catch limits. The framework could be applied to coral reef ornamental fisheries which typically lack landings, catch‐per‐unit‐effort and age‐size data to generate management guidance to reduce overfishing risk. We illustrate the application of this framework to an ornamental fishery in Indonesia.     

Strong fisheries management and governance positively impact ecosystem status

Fisheries have had major negative impacts on marine ecosystems, and effective fisheries management and governance are needed to achieve sustainable fisheries, biodiversity conservation goals and thus good ecosystem status. To date, the IndiSeas programme (Indicators for the Seas) has focussed on assessing the ecological impacts of fishing at the ecosystem scale using ecological indicators. Here, we explore fisheries ‘Management Effectiveness’ and ‘Governance Quality’ and relate this to ecosystem health and status. We developed a dedicated expert survey, focused at the ecosystem level, with a series of questions addressing aspects of management and governance, from an ecosystem‐based perspective, using objective and evidence‐based criteria. The survey was completed by ecosystem experts (managers and scientists) and results analysed using ranking and multivariate methods. Results were further examined for selected ecosystems, using expert knowledge, to explore the overall findings in greater depth. Higher scores for ‘Management Effectiveness’ and ‘Governance Quality’ were significantly and positively related to ecosystems with better ecological status. Key factors that point to success in delivering fisheries and conservation objectives were as follows: the use of reference points for management, frequent review of stock assessments, whether Illegal, Unreported and Unregulated (IUU) catches were being accounted for and addressed, and the inclusion of stakeholders. Additionally, we found that the implementation of a long‐term management plan, including economic and social dimensions of fisheries in exploited ecosystems, was a key factor in successful, sustainable fisheries management. Our results support the thesis that good ecosystem‐based management and governance, sustainable fisheries and healthy ecosystems go together.     

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。     

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.     

Early effects of COVID‐19 on US fisheries and seafood consumption

The US seafood sector is susceptible to shocks, both because of the seasonal nature of many of its domestic fisheries and its global position as a top importer and exporter of seafood. However, many data sets that could inform science and policy during an emerging event do not exist or are only released months or years later. Here, we synthesize multiple data sources from across the seafood supply chain, including unconventional real‐time data sets, to show the relative initial responses and indicators of recovery during the COVID‐19 pandemic. We synthesized news articles from January to September 2020 that reported effects of COVID‐19 on the US seafood sector, including processor closures, shortened fishing seasons and loss of revenue. Concerning production and distribution, we assessed past and present landings and trade data and found substantial declines in fresh seafood catches (?40%), imports (?37%) and exports (?43%) relative to the previous year, while frozen seafood products were generally less affected. Google search trends and seafood market foot traffic data suggest consumer demand for seafood from restaurants dropped by upwards of 70% during lockdowns, with recovery varying by state. However, these declines were partially offset by an increase (270%) in delivery and takeout service searches. Our synthesis of open‐access data sets and media reports shows widespread, but heterogeneous, ramifications of COVID‐19 across the seafood sector, implying that policymakers should focus support on states and sub‐sectors most affected by the pandemic: fishery‐dependent communities, processors, and fisheries and aquaculture that focus on fresh products.     

Unveiling unselective fishing in China: A nationwide meta-analysis of multispecies fisheries

Understanding and managing fishery selectivity to target species and desirable size are instrumental to fisheries management. China, as the world's largest producer of marine capture fisheries, has been widely perceived to possess unselective domestic fisheries. To date, this perception remains largely anecdotal and conjectural, hindering the development of evidence-based and effective management solutions. Here, we conducted a literature review to examine the magnitude and scale of unselective fisheries in China. By collating and analysing 140 fishery-level and 807 species-level records from 66 peer-reviewed publications from 2010 to 2021, we found that primary target species were absent in 59% of fisheries, while unidentifiable low-value and juvenile mixed catch were universal. Key commercial taxa were subject to nationwide multi-gear and multispecies fisheries, each involving an average of 3.33 types of gear and accounting for less than 25% of catch individually. The ‘permissible gears’ defined by the national gear regulatory catalogue were selective over target species and caught negligible by-products, though they were used less frequently, representing only 24% of catch records. While unselective fishing can provide seafood supplies for China's large population and potentially facilitate balanced harvest, management actions are needed to control the fishing pressure on primary target species and by-product species. Amid the ongoing fisheries management reform in China, we proposed management recommendations tailored to China's needs and social contexts, including accounting for the trade-off between socio-economic and ecological goals, contemplating impacts of unselective fishing when implementing TAC programmes, and strengthening fisheries monitoring to inform management at multiple scales.     

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.     

The behavioural dynamics of fishers: management implications

In pursuing their livelihood, fishers develop strategies when faced with changes in regulations and other fishery conditions. Changes involve each individual in a decision‐making process governed by his/her own goals or constraints. Despite this reality, the complex dynamics of fishing has usually been ignored in designing management initiatives, which has contributed to management failures in many parts of the world. Fishers have generally been treated as fixed elements, with no consideration of individual attitudes based on their operating scales (geographical, ecological, social and economic) and personal goals. We review existing research on the social, economic and behavioural dynamics of fishing to provide insight into fisher behaviour and its implications for fisheries management. Emphasis is placed on fisher perception, and how fishers develop dynamic fishing tactics and strategies as an adaptive response to changes in resource abundance, environmental conditions and market or regulatory constraints. We conclude that knowledge of these dynamics is essential for effective management, and we discuss how such information can be collected, analysed and integrated into fisheries assessment and management. Particular emphasis is placed on small‐scale fisheries, but some examples from industrial fleets are provided to highlight similar issues in different types of fisheries.     

Contemporary and emerging fisheries in The Bahamas—Conservation and management challenges,achievements and future directions

The harvest of marine resources has long‐standing cultural and economic importance to The Bahamas and other small island developing states. Tourists and residents place a demand on local marine resources, particularly Caribbean spiny lobster, Panulirus argus (Latreille), queen conch, Lobatus gigas (Linnaeus) and Nassau grouper, Epinephelus striatus (Bloch), and many fishery products are also sold on the global market. Illegal, unreported and unregulated fishing coupled with inadequate regulations and enforcement are the main factors contributing to the decline of Bahamian fisheries along with other anthropogenic impacts. This article reviews the status of fisheries management in The Bahamas using economically and ecologically important species as case studies to highlight conservation successes, knowledge gaps and deficiencies in existing management approaches. The review concludes with an examination of how emerging fisheries and improved conservation management strategies have the potential to improve economic and food security throughout the archipelago.     

Global significance of seagrass fishery activity

Seagrass meadows support fisheries through provision of nursery areas and trophic subsidies to adjacent habitats. As shallow coastal habitats, they also provide key fishing grounds; however, the nature and extent of such exploitation are poorly understood. These productive meadows are being degraded globally at rapid rates. For degradation to cease, there needs to be better appreciation for the value of these habitats in supporting global fisheries. Here, we provide the first global scale study demonstrating the extent, importance and nature of fisheries exploitation of seagrass meadows. Due to a paucity of available data, the study used a global expert survey to demonstrate the widespread significance of seagrass‐based fishing activity. Our study finds that seagrass‐based fisheries are globally important and present virtually wherever seagrass exists, supporting subsistence, commercial and recreational activity. A wide range of fishing methods and gear is used reflecting the spatial distribution patterns of seagrass meadows, and their depth ranges from intertidal (accessible by foot) to relatively deep water (where commercial trawls can operate). Seagrass meadows are multispecies fishing grounds targeted by fishers for any fish or invertebrate species that can be eaten, sold or used as bait. In the coastal communities of developing countries, the importance of the nearshore seagrass fishery for livelihoods and well‐being is irrefutable. In developed countries, the seagrass fishery is often recreational and/or more target species specific. Regardless of location, this study is the first to highlight collectively the indiscriminate nature and global scale of seagrass fisheries and the diversity of exploitative methods employed to extract seagrass‐associated resources. Evidence presented emphasizes the need for targeted management to support continued viability of seagrass meadows as a global ecosystem service provider.     

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.     

Estimates of fishing gear loss rates at a global scale: A literature review and meta‐analysis

Abandoned, lost or otherwise discarded fishing gear (ALDFG) represents a significant, yet ultimately unknown amount of global marine debris, with serious environmental and socioeconomic impacts. This study reviews 68 publications from 1975 to 2017 that contain quantitative information about fishing gear losses. Gear loss estimates reported by the studies ranged widely, with all net studies reviewed reporting annual gear loss rates from 0% to 79.8%, all trap studies reporting gear loss rates from 0% to 88%, and all line studies reporting gear loss rates from 0.1% to 79.2%. Information obtained from this review was used to perform a meta‐analysis that provides the first synthetic, statistically robust estimates of global fishing gear losses. The meta‐analysis estimates global fishing gear losses for different major gear types. We estimate that 5.7% of all fishing nets, 8.6% of all traps, and 29% of all lines are lost around the world each year. Furthermore, we identified key gear characteristics, operational aspects and environmental contexts that influence gear loss. These estimates can be used to support sustainable fisheries development through informing risk assessments for fisheries and monitoring and assessment efforts to reduce gear losses.     

Fuel consumption of global fishing fleets: current understanding and knowledge gaps

Compared to a century ago, the world's fishing fleets are larger and more powerful, are travelling further and are producing higher quality products. These developments come largely at a cost of high‐fossil fuel energy inputs. Rising energy prices, climate change and consumer demand for ‘green’ products have placed energy use and emissions among the sustainability criteria of food production systems. We have compiled all available published and unpublished fuel use data for fisheries targeting all species, employing all gears and fishing in all regions of the world into a Fisheries and Energy Use Database (FEUD). Here, we present results of our analysis of the relative energy performance of fisheries since 1990 and provide an overview of the current state of knowledge on fuel inputs to diverse fishing fleets. The median fuel use intensity of global fishery records since 1990 is 639 litres per tonne. Fuel inputs to fisheries vary by several orders of magnitude, with small pelagic fisheries ranking among the world's most efficient forms of animal protein production and crustaceans ranking among the least efficient. Trends in Europe and Australia since the beginning of the 21st century suggest fuel use efficiency is improving, although this has been countered by a more rapid increase in oil prices. Management decisions, technological improvements and behavioural changes can further reduce fuel consumption in the short term, although the most effective improvement to fisheries energy performance will come as a result of rebuilding stocks where they are depressed and reducing over‐capacity.