MPAS

Becoming Proactive Agents

Galicia, in the northwest of Spain, has initiated a bottom-up implementation and shared governance scheme for marine protected areas for small-scale fi sheries management

n the northeast Atlantic coastal governance of marine and coastal waters of , in northwest resources. ISpain, the bottom-up implementa- In this context, for small-scale tion of marine protected areas (MPAs), fisheries management purposes, MPAs as a means to promote the sustainable can provide an effective framework co-management of small-scale fisheries to empower resource users through alongside biodiversity conservation, shared governance arrangements, was initiated in 2003, with the improve their quality of life, generate implementation of the Os Miñarzos new socioeconomic opportunities MPA in Lira. through tourism and recreation, As elsewhere in the world, the recognize their ecological knowledge future of small-scale fisheries in and cultural identity, and contribute to 15 Galicia is uncertain and threatened the sustainability of small-scale fisheries by a range of interdependent factors and natural resources. The bottom-up such as the progressive decline of fishery resources due to overfishing, illegal fishing, environmental ...for small-scale fi sheries management purposes MPAs degradation and habitat loss; the increasingly fragile economic viability can provide an effective framework to empower resource of small-scale fishing enterprises; fish users through shared governance arrangements... marketing issues; abandonment of artisanal fishing activities; and the loss of local fishing cultural heritage (like traditions, architecture, boats, approach arose as an alternative to fishing arts, jobs and ecological the conventional top-down fisheries knowledge). Considering the great polices of local authorities, which failed social, economic and cultural to deliver sustainability, encouraged importance of small-scale fisheries non-compliance among resource users, in Galicia—which in 2004 had and invested substantial resources in 5,565 fishing vessels (of which 4,671 inefficient enforcement mechanisms. were less than 12 m in length) and 25,756 registered fishermen, out of a Local fi shermen’s organizations population of 2,750,985—it is crucial In Galicia, the implementation of MPAs to address and revert such trends. To for small-scale fisheries management effectively accomplish this task, Galician is a process led by local fishermen’s fishermen must see themselves—and organizations. It started with a proposal be seen by society and by the relevant by the Cofradía de Pescadores de Lira, authorities—as legitimate partners in based on fishermen’s detailed and every stage of decisionmaking related function-oriented knowledge about to fishery resource management, the marine ecosystems and species which must incorporate their needs that they exploit. (Cofradía is the This article is by Antonio Garcia Allut (antonio.garcia.allut@fundacionlonxanet. and priorities, and value and fully Spanish term for fishermen’s guilds, org) and Ana Jesus (anacristinajesus@ utilize their experiences and ecological which are traditional organizations gmail.com) from the Fundación Lonxanet knowledge systems through the shared that include all the fishermen working para la Pesca Sostenible, Galicia, Spain

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by five other initiatives – Aguiño; ; MPAs in Galicia, Spain Camelle; , Cariño, and ; and O Celeiro—all of which are currently in the design stage, including one (Cedeira, Cariño, Espasante and O Barqueiro) that is being carried out by four fishermen’s organizations working together (see figure). The MPAs for small-scale fisheries management purposes being

General situation of the area implemented in Galicia (locally known as Reservas Marinas de Interés Pesquero) correspond to Category VI (“Protected area with sustainable use of natural Legend resources”) of the IUCN classification. Already stabilished They aim to promote the sustainable Being stabilished exploitation of fishery resources by balancing the social and economic needs of human communities with the MPAs for small-scale fi sheries management maintenance of healthy and biodiverse purposes already established or being established in Galicia ecosystems. Thus, these MPAs are designed and planned to preserve in a certain geographical area, and and restore areas of significant have a democratic structure with two importance as spawning, nursery and 16 representative groups—of owners and feeding grounds for commercially crew—who elect an equal number of valuable fish and shellfish species; members to the executive bodies of promote sustainable and responsible the organizations.) The formulation fishing practices; generate livelihood of this proposal started in 2003, four diversification opportunities and years before its promulgation in value-addition strategies; encourage 2007, technically supported by the scientific research, environmental Fundación Lonxanet para la Pesca education, public awareness and Sostenible. It subsequently received the recreational opportunities; and necessary financial and legal support implement participatory and inclusive from the Autonomous Government fishery resources management of Galicia (‘Xunta de Galicia’) for its mechanisms based on socioeconomic implementation. and environmental sustainability criteria. The bottom-up implementation oof an MPA for small-scale fisheries The bottom-up implementation of an MPA for small-scale managementm purposes in Galicia fi sheries management purposes in Galicia comprises comprisesc several methodological several methodological phases. phases,p all of which are underlined by thet fundamental principles of participa- tion,t legitimacy, representativeness, shareds governance, and the use of The creation of the Os Miñarzos traditionalt ecological knowledge MPA in Lira generated important systems. methodological and legal precedents that were acknowledged by the Transparent process Galician government for the future Additionally, these processes demand implementation of such MPAs, the use of transparent and efficient opening the door for other fishermen’s communication and information organizations to initiate similar mechanisms. Therefore, to initiate such processes. The Ría de Cedeira MPA was a process, it is essential to legitimate the second of its kind to be decreed in it within the fishermen’s organization Galicia, on 29 January 2009, followed itself, ultimately by voting for it; to

SAMUDRA REPORT NO. 53 MAPS elect a Committee of Representatives, co-management body. After being which would normally include external subject to consensus approval in the facilitators who gather periodically Committee, the final proposal for the to work on the MPA proposal; and to MPA must be voted for during a General establish efficient communication Assembly, and adjusted, if necessary, in and information channels among order to be submitted for government resource users to enhance their approval. In case of an affirmative participation during the whole feedback, the participatory formulation process. During the meetings, the of the MPA establishment decree is Committee of Representatives starts initiated. by identifying the main features that The Implementation and Shared will influence the MPA design and Governance Phase starts with planning. Fishermen’s experiences and the election of the official MPA traditional ecological knowledge are the major sources of information used ...at the end of the Design Phase (as at the end of every to thoroughly characterize the area in terms of resource uses and users, phase), it is very important to organize a plenary session threats, conflicts, most productive (or a General Assembly, in this particular context) with all fishing grounds, annual fishing cycles, the fi shermen to legitimize the proposal... species life cycles, key habitats, and so on. Integrated in a geographical information system (GIS) database, co-management body (Órgano de this information will provide the basis Gestión), which will be composed of an for decisions on the MPA location, size, equal number of government officials shape and zoning, and subsequently and fishermen’s representatives. on how resources are to be used and This body is responsible for the 17 protected. Therefore, at the end of the co-management of the MPA, Design Phase (as at the end of every elaboration of its annual operational phase), it is very important to organize plan, co-ordination of monitoring a plenary session (or a General and enforcement activities, and Assembly, in this particular context) for the development of internal with all the fishermen to legitimize the communication channels and external proposal elaborated up to that point by communication strategies. The content the Committee of Representatives. of the Preliminary Management Subsequently, during the Plan should be complemented and Planning and Management Phase, the ANTONIO GARCIA ALLUT Committee formulates a Preliminary Management Plan defining long-term goals, identifying and prioritizing management needs, and proposing adaptable regulatory measures to address these needs in each one of the previously identified management zones (no-take zones, special protection zones and use zones). Regulatory measures applied to use zones generally comprise restrictions on recreational and commercial fishing on the type of gear and the number of devices per vessel or fisherman, catch limits, minimum landing sizes, and seasonal closures. The Committee will also discuss fishing rights allocation, biological and social monitoring, capacity building, performance evaluation, surveillance and enforcement, funding and self- Fishermen preparing the bait on a longline fi shing vessel in Cedeira, Galicia, Spain. Small-scale fi sheries management in Galicia is sometimes led by fi shermen’s organizations financing, and the functioning of the

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ANA JESUS

Panel discussion on “The Way Forward” at the end of the ICSF workshop on Social Dimensions of Marine Protected Area Implementation in India

18 A fi sh auction market in Cedeira, Galicia, Spain. Fish marketing issues often hamper the development of small-scale fi sheries

continuously reviewed, updated and fishermen and the government, and adapted by the co-management body, between fishermen and NGOs, by according to the new knowledge increasing management flexibility, generated by the management process and by reinforcing monitoring and itself, and by monitoring outcomes, evaluation processes. and through continuous consultations Above all, it is important to bear in with fishermen. mind that the implementation of MPAs The implementation of MPAs for for small-scale fisheries management small-scale fisheries management purposes involves a continuous process purposes in Galicia is a recent of social change and empowerment, phenomenon with a lot of potential with the potential of reconverting to develop and strengthen. From our small-scale fishermen into proactive experience in Fundación Lonxanet agents working towards the sustainable para la Pesca Sostenible, a non- management of coastal and marine governmental organization (NGO) resources. working directly with these processes, the effectiveness of this kind of MPAs For more would be reinforced by developing strategies to increase co-ordination www.mardelira.net among stakeholders, by drawing on Cofradía de Pescadores de Lira other experiences through mutual learning processes and networking, by www.fundacionlonxanet.org strengthening internal communication Fundación Lonxanet para la Pesca channels, by developing efficient Sostenible external communication strategies and promoting public awareness campaigns www.recopades.org on the importance of small-scale Red de Comunidades de fisheries, by implementing efficient Pescadores Artesanales para el conflict resolution mechanisms, by Desarrollo Sostenible strengthening the relationship between

SAMUDRA REPORT NO. 53