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Fisheries Management Performance and the Ecosystem Challenge Jon G. Sutinen Mark Soboil University of Rhode Island USA.

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Presentation on theme: "Fisheries Management Performance and the Ecosystem Challenge Jon G. Sutinen Mark Soboil University of Rhode Island USA."— Presentation transcript:

1 Fisheries Management Performance and the Ecosystem Challenge Jon G. Sutinen Mark Soboil University of Rhode Island USA

2 Three take-home messages Rights-based management works well –superior conservation & economic benefits –outperforms traditional management Resist the alliance of short-term interests –fundamental source of failure –reforms are needed Plan carefully your EBFM approach

3 The OECD Study OECD Towards Sustainable Fisheries: Economic Aspects of the Management of Living Marine Resources. Paris Assembled evidence and expert analysis from –24 OECD Member countries –more than 100 fisheries 4 years to complete

4 Evidence Management histories for each fishery –a chronological description of the management measures applied, and –corresponding outcomes observed in the fishery biological economic social administrative

5 Management Measures Output Controls –Competitive Total Allowable Catch (42 cases) –Individual Quotas (55) –Vessel Catch Limits (19) Input Controls –Limited Licenses (40) –Individual Effort Quotas (23) –Other Gear & Vessel Restrictions (45) Technical Measures –Size & Sex Controls (49) –Time & Area Closures (52)

6 Consequences Biological –exploitation status of resource stocks Economic –net benefits producers processors distributors consumers Social –perceived equity –life style –class divisions Administrative –research –data quality –industry cooperation –enforcement

7 Competitive Total Allowable Catch (OECD 1997) Race-to-fish –shortened seasons –market gluts Over capacity –more & larger vessels –more HP, larger hull, etc. Increased costs –harvesting and processing

8 Update on TACs Supports findings of OECD (1997) –race-to-fish –over capacity Substantial reductions in TACs Applied to new species –Japan –European Union

9 Limited Licenses OECD (1997) Did not control fishing capacity Did not stem over-exploitation Increased harvesting costs Some initial allocation problems

10 Time & Area Closures OECD (1997) –Closures not effective in assuring conservation though evidence was weak Update –Several new & enlarged closures e.g., Mediterranean bluefin tuna –U.S. closures on Georges Bank & Gulf of Maine improved abundance of sea scallops recovery of yellowtail flounder

11 Size & Sex restrictions OECD (1997) Do not mitigate the race-to-fish Increased enforcement costs and/or problems Some evidence that –the average size of fish landed increases –discards increase

12 Individual Fishing Quotas OECD (1997) IFQs –potent & valuable tool controlling exploitation, mitigating the race-to-fish generating sustainable economic benefits reducing the number of participants in a fishery –serious side effects initial allocation of quota economic and social disruption (real & imagined) enforcement and compliance.

13 Individual Fishing Quotas OECD (1997) IFQ management –more conservation and economic benefits than other management measures –more social & administrative problems than other measures non-IFQ management measures –far less conservation & economic benefits than IFQs –fewer social and administrative difficulties than IFQs

14 Why do IFQs perform so well? IFQs are rights-based –provide fishing rights that are exclusive –exclusive rights of use mitigate race-to-fish user conflicts excess capacity –provide a claim on the future a willingness to sacrifice to conserve stocks

15 Update on IFQs Results supported by NRC(1999) study Worldwide trends –towards the use of IFQs especially in fisheries formerly under competitive TAC management –towards cost recovery user fees users pay in proportion to benefits received

16 Update on IFQs Worldwide trends –Solutions are being found initial allocation enforcement equity & disruptions –Collective rights (U.S., Canada) Community Development Quotas Conservation Cooperatives Community-based organizations

17 Over exploited 28% Status of world fisheries Fully exploited 47% Under exploited 25% Source: Garcia, 2001

18 Status of world fisheries Excess fishing capacity Product waste Low incomes & tax revenues User conflicts Etc.

19 Why this poor record? Why dont we have a better record of management? Why havent managers chosen more effective management methods? –rights-based measures –meaningful user participation Do we lack the knowledge? Do we lack the funds?

20 Possible Reasons FAO –Uncertainty status & dynamics of fishery resource stocks –Poorly defined objectives –Institutional weaknesses –Short-term social & economic needs vs. long-term sustainability Governance Incentives

21 Legislature Executive Branch Fisheries Agency Fisheries Management Authority Stakeholders Fishermen, Communities, Environmentalists Fisheries Governance System

22 Legislature Executive Branch Fisheries Agency Fisheries Management Authority Stakeholders Fishermen, Communities, Environmentalists Fisheries Governance System

23 Legislature Executive Branch Fisheries Agency Fisheries Management Authority Stakeholders Fishermen, Communities, Environmentalists Multiply by – user groups – gear types – locations – agencies – jurisdictions Governance is a complex system or network of organisms – the ecology of governance

24 Causes of governance failure Alliance of short-term interests –fishing industry dominant stakeholders without secure fishing rights –resist short-term sacrifice –no assurance of long-term benefits –elected officials short-term election cycles (2, 4, 6, years) concerned with short-term consequences responsive to special interests

25 Question Will governance & management institutions perform better under ecosystem-based management?

26 Ecosystem-based fisheries management Increases the complexity of governance system –greater number & diversity of competing users –more demands on interagency collaboration & coordination Will EBFM increase or decrease –the chances of failure? Plan carefully –governance incentives must be properly aligned –balance long-term and short-term interests

27 Conclusions Fishery governance systems –biased against conservation of resources Reforms are needed –to block the causes of governance failure alliance of short-term interests –to adhere to first principles of effective fisheries management –rights-based methods good government

28 Reforms Devolution –resource users should share the rights & responsibilities of management bear full consequences of decisions Role of government –oversight of management –not operational decision-making

29 Reforms Code of Conduct for Responsible Fishery Policy Making –abstain from political interference in operational decision-making i.e., insulate managers –set objectively measurable long-term objectives –exercise firm oversight of long-term performance


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