Kasetsart J. (Nat. Sci.) 46 : 427 - 439 (2012)

The “Crab Bank” Project: Lessons from the Voluntary Fishery Conservation Initiative in ,

Daracha Thiammueang1,*, Ratana Chuenpagdee2 and Kungwan Juntarashote1

ABSTRACT

In this study, the interactive governance framework was applied to examine factors contributing to the implementation of “crab bank” projects (a voluntary conservation program) implemented in Ban Panern and Ban Klongthian fi shing villages in Phetchaburi province. Using key informant interviews and participant observation, the ‘step zero’ or the pre-implementation stages of the projects were examined and the study assessed what characteristics of the natural and social systems associated with the fi sheries, of the governing system, and of their interactions that may contribute to successful implementation of the crab bank project. The results showed that Ban Panern followed a more collaborative process in establishing the crab bank, with fi shers actively involved. The high diversity of the system-to-be-governed and high level of interactions in Ban Panern contributed positively to the successful implementation, making governability high. On the other hand, Ban Klongthian struggled to maintain the project due to the low collaboration from fi shers and too much reliance on the leaders. Moreover, the project was introduced by the government, and fi shers were not directly involved in the early discussion. Overall, active participation of fi shers in conservation projects such as the crab bank needs to be encouraged, along with improving positive interaction among fi sheries stakeholders. Keywords: interactive fi sheries governance, crab bank, blue swimming crab, voluntary conservation, Phetchaburi province

INTRODUCTION fuel prices exacerbate the situation, making it diffi cult for fi shers to cover their costs and to Current fi sheries problems in Thailand obtain viable livelihoods. Those without assets are diverse and complex. For instance, fi sheries or supportive networks tend to end up in debt, resources are heavily exploited, with excess fi shing and many are trapped in a vicious poverty cycle. capacity and the use of destructive fi shing gear, On the governance side, fi shery law is outdated, like bottom trawls, push nets and clam dredges monitoring and enforcement manpower are (Tokrisna et al., 1997; Juntarashote, 1998). Fishers, limited, and surveillance and control are not especially small-scale, are not able to obtain stable effective (Tokrisna et al., 1997). These problems and reasonable incomes from their catches due to are complicated and diffi cult to solve because catch reduction, price fl uctuation and their lack they are not technical but social in nature. They of bargaining power with middlemen. The rising are what Jentoft and Chuenpagdee (2009) call

1 Department of Fishery Management, Faculty of Fisheries, Kasetsart University, 10900, Thailand. 2 Department of Geography, Memorial University of Newfoundland, St. John’s, NL A1B 3X9, Canada. * Corresponding author, email: [email protected] Received date : 08/01/12 Accepted date : 02/03/12 428 Kasetsart J. (Nat. Sci.) 46(3)

“wicked problems”, meaning that they cannot be cages, where the crabs are raised until they spawn. addressed using technical solutions. Instead, fi rst Eggs are then released to the sea to enhance crab and foremost, they require an acknowledgement recruitment, after which the female crabs can be that the problems may be defi ned differently and sold. The key element of the project is that the understood differently by stakeholders. The next gravid female crabs should be provided voluntarily step is to recognize that a ‘governance’ approach, by fi shers, rather than the government having to not management, is needed to address these buy them from fi shers (Tiansongrassamee, 2008; ‘wicked problems’ of fi sheries. Suanrattanachai et al., 2009). Since its conception, In Thailand, fi sheries are managed using the crab bank project has been implemented in legislated regulations, implemented under the Thai many coastal provinces, and according to an Fishery Act 1947 (Department of Fisheries, 1987). assessment in 2004, catch rates have increased Management measures that have been in place (Petchkamnerd et al., 2004). This is, by no means, since then and are still in use today include closed suffi cient to conclude that the crab bank is an areas and closed seasons, prohibition of trawl effective management and conservation method and purse seine fi shing within three kilometers and that it can be successfully implemented in all from the shoreline to preserve a nursing area for coastal areas. Following Chuenpagdee and Jentoft juvenile aquatic resources, and limiting the mesh (2007), the current study submits that a study of size of trawler and purse seiners (Juntarashote, the ‘step zero’ or the pre-implementation stage 1998; Juntarashote and Karnjanakesorn, 2001; of a crab bank project is essential in determining Department of Fisheries, 2006). Some of these its success. Further, a ‘governability’ study measures were determined after only biological (Kooiman, 2008) that examines what factors consideration and are implemented using a contribute to successful implementation of a crab top-down approach. Consequently, they have bank project and what factors inhibit its progress not been effective due to the lack of agreement is needed to help achieve the overall conservation and compliance of most fi shers (Juntarashote, goal. Learning from these studies would help 1998). Recently, with an increasing concern on determine whether the crab bank project should over-exploitation and heightened attention on be promoted in all coastal areas, and if so, how it conservation, a new set of measures, including should proceed. marine protected areas, have been promoted, This paper is an illustration of these and a shift from top-down, state control to co- propositions based on the comparative analysis of management and community-based management two crab bank projects in Phetchaburi province. It is taking place. describes the interactive fi sheries governance and An example of these initiatives is the the governability concept, which is the analytical “crab bank” project, created by the Department framework of this study. Next, it presents the study of Fisheries in 2002 in response to the decline in area and the methods, followed by the results of crab fi sheries catches, and as part of the national the step zero and the governability assessment. program to promote community-based fi shery It concludes with discussion about the broader management. The project aims to conserve application of the crab bank project to address and sustain crab resources and enhance the fi sheries problems in Thailand. awareness of local fi shers on the importance of their involvement in fi sheries management. It THEORICAL BACKGROUND involves fishers releasing gravid female blue swimming crabs (Portunus pelagicus) in rearing Governance is not a new concept. Because Kasetsart J. (Nat. Sci.) 46(3) 429 the term has been traditionally used to mean to governance (Chuenpagdee, 2011). In assessing pilot or to steer, it is normally associated with what governability, four attributes of the systems— governments do (Kjær, 2004). Today’s usage of the diversity, complexity, dynamics and scale—were term governance is more comprehensive, with the examined (Figure 1). Diversity is related to the recognition that other actors besides government heterogeneity of system, which can be examined by play governing roles, which are broader than looking at its components, that is, what it is made routine management activities. Drawing from of, in what numbers, and how they are different interactive governance theory (Kooiman et al., from each other. For complexity, the study looked 2005), the current study employed a system at relationships between components; for instance, approach in examining the characteristics of the their inter-dependency or how one positively or system-to-be-governed, the governing system negatively affects the other. Next, dynamics refers and the interactions between them. The system- to the fact that the three systems are volatile and to-be-governed is further divided into the natural can change over time. Some of these changes and the social systems. The governing system is are linear, but frequently they are unpredictable defi ned as the formal and informal institutions and unexpected, as when natural disasters, like playing a role in governing. They are responsible a tsunami or hurricane, hit coastal areas. System for infl uencing the behaviors of the social system dynamics are expressed as interactions, that through interventions such as regulatory measures is, how the related components infl uence each and institution building that induce resource other and how change in one part impacts other users and other actors to cooperate. Finally, elements and the whole system. Finally, scale governing interactions are ways in which the relates to the spatial and temporal dimensions and governing system is made aware of and sensitive the focus on boundaries helps explain how they to the diversity, complexity, dynamics and scale defi ne components and confi ne relationships and issues within the systems-to-be-governed. They interactions (Jentoft and Chuenpagdee, 2009). are related, for instance, to how information is collected and communicated, how representation MATERIALS AND METHODS is organized, and how stakeholders participate in governance (Chuenpagdee and Jentoft, 2009). Study area A key concept in the interactive Phetchaburi province is located in western governance theory is ‘governability’ (Kooiman Thailand at the northern end of the . et al., 2005). A governability assessment helps With four of the eight districts located along the governors understand how far they are from coast, fi sheries are economically important to the reaching the goals. It recognizes the intrinsic province. In 2010, fi sheries provided over 25,000 and constructed qualities of the fi sheries system t of products or approximately THB 1.5 billion or its performance that contributes to the actual (USD 50 million) in value (Offi ce of Phetchaburi

System properties System variables System- to- be- Governing Governing Diversity governed interaction system Components Complexity (SG) (GI) (GS) Relationships Dynamics Interactions Scale Boundaries

Figure 1 Governability assessment framework (Source: Jentoft and Chuenpagdee, 2009) 430 Kasetsart J. (Nat. Sci.) 46(3)

Province, 2010). The two fi shing villages with blue and the socioeconomic system. Additionally, the swimming crab bank projects where the study was study asked about the interactions between the conducted are Ban Panern and Ban Klongthian system-to-be-governed and the governing system (Figure 2). Ban Panern, in Laem Phak Bia sub- in each village. The interviews took place during district, is a small village of about 1.4 km2 (885 August–September 2011, along with participant rai) with 177 households (Laem Phak Bia observation to investigate the characteristics of the Administration Organization, 2010). Marine communities in the two villages. Key informants fi shing is a major occupation, with blue swimming for this study were chosen using a combination of crab as the main target species. Crab gill nets and snowball and purposive sampling methods. The collapsible crab traps are the two main types of latter was to ensure that the interviews covered a gear used. The second village, Ban Klongthian, range of stakeholders who were knowledgeable is located in Cha-am Municipality about 35 km about all aspects of the systems. In total, 31 people south of Ban Panern. It is larger in area (about 3 were interviewed in both villages (Table 1). km2 or 1,875 rai) with 247 households (Cha-am Municipal Offi ce, 2011). Similar to Ban Panern, RESULTS blue swimming crab fi sheries are important. Step zero of the crab bank projects Data collection The crab bank project in Ban Panern The study was conducted using a mixed was initiated by the Thai Sea Watch Associate, a method of literature review, key informant non-governmental organization (NGO) based in interviews and participant observation. The . Through informal discussion literature review included journal articles, with local fishers about their activities and technical papers, government reports, existing livelihoods, and recognizing the problem with blue statistics and students’ theses. A series of open- swimming crab production, the crab bank concept ended questions was used in the key informant was proposed by the NGO in 2007. The proposal interviews. They consisted of questions related was met with some interests by the local fi shers. As to the pre-implementation stage of the crab bank a leader of one fi shing group stated, “… fi shers will project in the study area and the natural system agree with the NGO staffs when they advise them

Figure 2 Study areas: Ban Panern and Ban Klongthian in Phetchaburi province. Kasetsart J. (Nat. Sci.) 46(3) 431 on matters advantageous to the village, but will with good collaboration from fi shers including the go against if those staffs ask to do in the negative months when gravid female crabs are scarce such way such as protesting to the government”. The as in June and July. NGO organized a visit for a small group of fi shers In Ban Klongthian, the crab bank project from the village to observe an ongoing crab bank was suggested by a few government fishery project in Nakhon Si Thammarat province. Upon biologists, who conducted research on the hatching their return, fi shers started the crab bank project in rate of blue swimming crabs in the area in 2007 2009, with the help of the NGO and with support (Jindalikit et al., 2010). The project was introduced from various units of governments. The crab bank as a way to help the recovery of crab fi sheries project is managed by a committee comprising 15 resources. After agreement was reached at a village villagers. meeting, a similar process was followed to that in At fi rst, the crab bank fl oating cages were Ban Panern, but without the visit to a successful anchored in the sea about 2 km from shore. Later site. Funding was provided by the government the operation was moved to an inland area along and the fi shery biologists continued to play a key the riverside, to avoid transportation and weather role in the project. Like Ban Panern, the crab bank problems. The process began with the collection committee consisted of 15 people. Although the from fi shers of gravid female crabs with eggs at crab bank project still exists, there has not been any the greenish-black stage. These crabs were placed activity for some time because of the scarcity of into plastic buckets that contained salt water, with gravid female crabs and due to the health problems one crab in each bucket. When the eggs hatched of the crab bank project leader. to the zoea stage (about 1–2 d), the crab larvae were released to the sea through a tube attached Characteristics of the two studied villages to the bottom of the bucket. After the female crabs Natural system-to-be-governed had released their eggs, they could be sold, and Diversity: The coastal areas in Ban income from the sale was used for maintenance Panern village consist largely of mud fl ats and of the hatchery and other facilities. The crab bank sandy beaches, with some mangrove forests project in Ban Panern is still in operation today, (Pollution Control Department, 2004). Numerous

Table 1 List of key informants interviewed in this study. Number of key informants Category Ban Panern Ban Klongthian System-to-be-governed Fishers 4 4 Villagers who are not fi shers 2 2 Housewives of fi shers 2 2 Fish traders 1 1 Governing system TAO/municipality offi cers 1 1 Village leader 1 1 Fisheries group leaders 3 1 Department of Fisheries 2 2 Non-governmental organization 1 - Total 17 14 432 Kasetsart J. (Nat. Sci.) 46(3) aquatic species are found in the area, such as Ban Klongthian is relatively less productive and threadfi n (Eleutheronema tetradactylum), longtail less complex than Ban Panern. sard (Tenualosa macrura), sand whiting (Sillago Dynamics: Coastal areas are infl uenced sihama), mackerel (Rastrelliger spp.), large-scale by tidal waves; thus the organisms have to tongue sole (Cynoglossus macrolepidotus), hard constantly adjust their behavior to adjust to such shell (Meretrix meretrix), blood cockle (Anadara changes. In both villages, some aquatic species granosa), razor clam (Pharella javanica), banana have certain migration patterns that suggest a shrimp (Penaeus merguiensis), blue swimming moderate level of dynamics. For example, blue crab (Portunus pelagicus), mud crab (Scylla swimming crabs move into shallow areas for serrata), and squid (Loligo spp.) according to spawning. Their larvae live in the estuaries for a the Office of the Royal Development Project period before migrating to the open sea (Jindalikit, Board (1997). In addition, dolphins and Bryde’s 2001). Other elements of the natural system whale can be found in the area. With this level of demonstrate less dynamics. Mangrove forests, biodiversity, the natural system-to-be-governed is for instance, are slow to grow back after being considered to be ‘highly’ diverse. clear-cut 20 years ago during the aquaculture Ban Klongthian has long stretches of boom (Sawunthong, 2008). On the whole, the white sandy beach and good water quality for dynamics of the natural system in Ban Panern and recreation (Pollution Control Department, 2004). Ban Klongthian are moderate. There are fewer mangrove forest areas in the area. Scale: Although both villages are small Aquatic species in the area are similar to those in size, the boundaries are not as clear because found in Ban Panern, but with the addition of of the openness of the coastal area and the spotted Babylon (Babylonia areolata) and Dollfus’ connectivity to the watershed. In both cases, there octopus (Octopus dolifusi). While dolphins can still are canals that link freshwater sources to the sea. be found, one of the fi shers interviewed mentioned These characteristics create a moderate level of that they have not seen Bryde’s whale in the area scale issues that may contribute to governability for a long time. Compared with Ban Panern, the challenges in both villages. natural system-to-be-governed is considered to Socio-economic system-to-be- have a ‘moderate’ level of diversity. governed Complexity: Mud fl ats and mangrove Diversity: From the interviews and forests in Ban Panern serve as important habitats fi eld observation, the study found that small-scale for juvenile fi sh and crabs and especially dwelling fi shers in Ban Panern use multiple types of gear, animals like clams (Aksornkoae, 2007). This targeting multispecies. The main types of gear dependency makes for complex relationships in were crab gill nets, fi sh gill nets, shrimp gill nets the natural system-to-be-governed. In addition and collapsible crab traps. Large-scale fi sheries to the natural habitats, artificial reefs have also exist, to a lesser extent, using mackerel purse been installed in the Ban Panern area to help seine and squid nets. Most of these fi sheries hire increase fi sheries productivity (Supongpan and foreign labor. Some women gather hard clam Jenkitkosol, 2003). There is also a waste water and blood cockle using small hand dredges treatment system, which enhances the abundance and some go fi shing with their husbands, in the of coastal fi sheries resources, especially those in case of small-scale businesses. The majority of the benthic zone such as blood cockle and hard small-scale fi shers are members of three fi sheries shell. Therefore, the natural system in Ban Panern groups—the crab bank project, the community fi sh is highly complex. With less mangrove forests, marketing organization and the community boat Kasetsart J. (Nat. Sci.) 46(3) 433 repair service. There is also a women’s enterprise, their daily decisions, as well as how they interact which produces ceremonial fl owers for funerals. with fi sh traders to fi nd out the best price offers. Other non-fi shing occupations dominating the In the case of Ban Klongthian, fi shers also interact area are day laborers and merchants or small with tourists, who buy seafood directly from them. traders. The multitude of livelihoods and types of In both villages, the dynamics are high. employment contribute to the high diversity in the Scale: Houses in Ban Panern are social system-to-be-governed in Ban Panern. clustered near each other because of close kinship Livelihood activities were similar in Ban among villagers. There is clear delineation for Klongthian, with more fi shers using collapsible areas used for different activities, such as the crab traps; some fi shers use octopus traps (not salt pan and shrimp ponds, as was also found by found in Ban Panern), and more foreign labor. Sawunthong (2008). Small-scale fi shing activities Women in Ban Klongthian are more actively take place within 10 km of the shore. The few involved in selling the fi sh products directly to local fi sh traders sell their goods directly to fi sh consumers than those in Ban Panern, given their markets in Bangkok and Samut Sakon. These location. The social diversity in Ban Klongthian characteristics contribute to medium level of is considered to be similarly high. scale issues. Ban Klongthian, on the other hand, Complexity: Although not all fi shers has some houses concentrated around the landing in Ban Panern are involved in the activities of area while others are spread out, covering a large the fi sheries groups in their community, groups area. Communication between villagers is more were created based on the agreement of most diffi cult in this village compared to Ban Pranern. fi shers. Some confl icts occasionally occurred but Rather than relying on fish traders, fishers in fi shers mostly collaborated when dealing with Ban Klongthian sell directly to tourists or bring those from outsides who fi shed illegally in their their catches to sell at the market in Cha-am fi shing area. This high collaboration results in municipality. The scale issue in Ban Klongthain a medium level of complexity. While there are is thus considered to be high. fewer fi sheries groups, the relationships among Governing system the village members in Ban Klongthian are more Diversity: The village head of Ban complicated, due for instance to more foreign labor Panern is the formal governing actor at the and more women involved in the fi sh trade. For this lowest level of government. The next level reason, the social complexity of Ban Klongthian is up in the governing system is the tambon considered to be higher than that of Ban Panern. (subdistrict) administration organization (TAO), Dynamics: The richness of the resources created from the decentralized strategies of causes short-term dynamics in the fisheries Thai governments since 1994 to administer the sector in both villages, with fi shers making daily whole subdistrict (Arunakasikorn, 1995). The decisions about what species to target and thus main government agency directly responsible what gear to use. For instance, according to the for fi sheries management is the Department of interviewed fi shers, they use shrimp gill nets in Fisheries, which is supported by the Phetchaburi the southwest monsoon season, from mid-May Coastal Fisheries Research and Development to September, but switch to crab gill nets in the Center, as well as district and provincial fi sheries northeast monsoon from November to mid-March. offi ces. Other organizations playing key roles in In addition, the dynamics of the system can be seen coastal resource management are the Department from how fi shers communicate among themselves of Marine and Coastal Resources, the Royal about their fi shing activities, which may infl uence Laem Phak Bia Environmental Research and 434 Kasetsart J. (Nat. Sci.) 46(3)

Development Project, Phetchaburi Rajabhat leaders. The dynamic is considered to be at the University, the NGO and fisheries groups. medium level in both villages. The wide range of governing actors makes the Scale: Lam Phak Bia TAO is responsible governing system highly diverse. for four villages, while the Offi ce of Cha-am Cha-am is considered a ‘medium scale’ municipality has 15 communities under its care. city (more than 10,000 people) and is thus governed The Department of Fisheries covers 22 coastal by the Offi ce of the Cha-am Municipality, which provinces in the country but has units at the regional functions similarly to the TAO in Ban Panern. and provincial levels for local management and data At the village level, a community chairman is collection. It also collaborates with international responsible for governing. The diversity of the organizations like the Food and Agriculture governing system is therefore medium. Organization of the United Nations (FAO) to Complexity: The two levels of formal combat illegal, unreported and unregulated (IUU) governing actors, that is, the village leader and the fi shing. Thailand has adopted the plan of action TAO, create a complex relationship in governance proposed by the FAO, and thus has to certify that and each actor has a different infl uence on how marine fi sheries and fi shing products exported to the fisheries are managed. Other government the European Union are not from IUU fi shing. The groups have overlapping responsibilities in wide ranging scope of their responsibility makes coastal resource management. For instance, the scale issues high for the governing system in monitoring, control and surveillance duties are both villages. performed by three other units in addition to the Governing interactions Department of Fisheries the Phetchaburi Marine Based on the interviews with the key Fisheries Suppression and Prevention Center, the informants, the study found that representation Department of Marine and Coastal Resources, and participation of stakeholders were higher and the Patrol Unit of the Marine and Coastal in Ban Panern than in Ban Klongthian. In Ban Conservation Center. The multiple agencies and Panern, many fi shers are involved in the crab bank the general lack of collaboration between these project, and in leading other fi sheries groups. To organizations generate a high level of complexity represent other fi shers in any project is not an in Ban Panern. Complexity in Ban Klongthian is easy task, as noted by the fi shers involved in the comparatively low. crab bank project in Ban Panern, “… no reward Dynamics: Most of the government returns to me except the pride that we are the organizations and the NGO have regular, although one helping crab resources to recover, it is not a not frequent, interaction with village leaders, waste the time but we need to make the time for including the leaders of the fi sheries groups. They it. If I do not initiate it, the project could not be consult with each other about the fi sheries and implemented”. These actions suggest that fi shers the crab bank project. At the village level, the have meaningful participation in the project. leader or the municipality chairman is normally an There are a few methods of communication in the important and respectable fi gure, who is appointed village such as radio broadcasts and face-to-face by election. According to the Local Administration discussion. The different levels of government Law 1914 (B.E. 2457), the appointee can be in communicate with the village leaders through the leadership position until reaching the 60 years formal meetings and conversations. Moreover, the of age (Arunakasikorn, 2000). Thus, growth and fi sheries extension offi cers have monthly meetings development in the village depends heavily on with fi shers and villagers. In both villages, the the leadership quality and ability of these village level of communication and information sharing Kasetsart J. (Nat. Sci.) 46(3) 435 is considered to be high. With respect to learning success of each project. The study showed that and adaptation, the study found that there were the overall characteristics of the two villages are more of these interactions in Ban Panern than not very different because they are located in the in Ban Klongthian. For instance, the villagers in same province, only a short distance from each Ban Panern have learned about waste separation other, and they having similar governing systems. and waste water treatment from the extension Yet, there are some notable exceptions which unit of the King's Royal Project and have adapted contribute to different levels of governability. these methods in their households. The villagers First, Ban Klongthian has less mangrove forests seem to have a high level of awareness about the and smaller mud fl at areas, and is considered to be importance of maintaining a good environment in less diverse and complex. The importance of these their area. Such learning and adaptation is not seen ecosystems in mitigating damage and protecting in Ban Klongthian. Finally, Ban Panern seems to coastal areas, livelihoods and assets makes have greater appreciation and collaboration than in governance challenging. Such diffi culty is further Ban Klongthian. The crab bank project in the latter compounded when the dynamics and the spatial has temporarily stalled due to the lack of donations extent of the coastal ecosystems are considered. of gravid female crab by the fi shers. According to Aquatic animals in these areas, especially the blue the project leader, “… high price of crab due to swimming crab, undergo movement or migration the tourist attraction may induce fi shers to want patterns throughout their life cycle. Wave and to sell their crabs, more than donate them to the tidal currents or a huge freshwater fl ooding into project.” the sea occur often and can kill off some aquatic animals that are sensitive to salinity fl uctuations. DISCUSSION On the other hand, some changes are manageable with the reforestation of mangrove forests and Table 2 summarizes the key characteristics the installation of artifi cial reefs, both of which distinguishing the two fi shing villages and their contribute to increasing the fi sheries productivity crab bank projects. These characteristics determine in the coastal areas. Taken together, it may be the level of ‘governability’ and the likelihood of stated that the characteristics of the natural system-

Table 2 Comparative analysis of the two villages and their crab bank projects. Ban Panern Ban Klongthian Characteristic NSG SSG GS NSG SSG GS Diversity H* H H* M* H M* Complexity H* M* H* M* H* M* Dynamics M H M M H M Scale M M* H M H* H Governing interactions Governing interactions Representation/participation H* M* Information/communication H H Learning/adaptation H* M* Appreciate/collaboration M* L* NSG = Natural system-to-be-governed; SSG = Social system-to-be-governed; GS = governing system; H = high; M = medium; and L = low. * = Difference between two villages. 436 Kasetsart J. (Nat. Sci.) 46(3) to-be-governed in both villages will likely cause Panern more governable than in Ban Klongthian. some diffi culty for governance, resulting in a The governability of the crab bank project in Ban moderate level of governability. Panern is also high because fi shers and the leaders With respect to the social system-to- use their experiences and local knowledge to help be-governed, both villages have a high level of make decisions, which, according to Wilson et diversity, with fi shers, other resource-dependent al. (2006), is one of the key factors for successful users and those not directly related to coastal resource co-management. resources. These stakeholders also have complex The last element in assessing governability relationships, with close kinship in the case is the interaction between the systems-to-be- of Ban Panern and with people external to the governed and governing systems. High governing community (like tourists in the case of Ban interaction among both systems could contribute Klongthian. These characteristics contribute to to a high level of governability (Chuenpagdee the diffi culty of governance; thus, there is a low and Jentoft, 2009). The governing interaction of level of governability in both villages. Fortunately, both villages in terms of learning and adapting is the dynamics and scale of the social systems medium, but information and communication is in Ban Panern do not present major challenges high. The ways to communicate, through news to governance. Thus, when considering all broadcasting towers and monthly meetings in both elements together, the governability level of the villages, are neither diverse nor frequent. Yet, they social system-to-be-governed in Ban Panern is are appropriate for the small village setting, with considered to be moderate. In the case of Ban a clustered house pattern. There are differences in Klongthian, with more foreign workers and more representation and participation, and appreciation scale issues, due to the exchange with tourists, and collaboration between both villages, with a governance challenges are higher and thus lower higher level of interactions in Ban Panern than in the governability of the social system in this Ban Klongthian. This level of interactions depends village. on the willingness of the villagers and the fi shers, Even when the properties of the natural especially with respect to the crab bank project, and the social systems-to-be-governed do not which is a voluntary measure. One way to increase represent major governance challenges, if the interactions is by having a project leader indicating governing system is not suitable for or capable the goals of the project and the advantages that of performing its duties, governance outcomes participants will be receive. As Vesarach (1985) may not be successful (Jentoft and Chuenpagdee, stated, a good leader is a major factor in pushing 2009). With fishers in Ban Panern playing forward the participation of population in the active roles in addressing any resource crisis, communities besides the physical and economic including participating in the crab bank project, characteristics, and the incentives. However, this they do not rely solely on the village leader. The process is challenging for the governing system in decentralization that has taken place in Ban Panern Ban Klongthian, which implies that it has a lower is an alternative option that helps lighten the level of governability. village leader’s work load. Further, having more Finally, as suggested by Chuenpagdee actors involved in governance can be positive and Jentoft (2007), the success of the crab bank when they are organized and collaborating well. project depends partly on its step zero. The The close relationship between the NGO and the different forms taken in the step zero stage of the community, and the good collaboration of fi shers, crab bank projects in the two villages are likely contributes to making the crab bank project in Ban the reason why the projects are at different stages. Kasetsart J. (Nat. Sci.) 46(3) 437

The involvement of the NGO and the fi eld visit to Generally speaking, high governability another crab bank project by Ban Panern fi shers are implies less demand from the governing system, the main factors contributing to successful creation but any fi shery will likely have a mixture of high and implementation of the crab bank project in this and low governability in the systems (Song, 2009). village. Fishers and other community members The current study showed that although there is have also been in agreement about the rules and the high diversity and high complexity in the system- norm for operating in the village, such as no fi shing to-be-governed, high levels of interactions, through on Buddhist holy days, which also contributes to learning, adaptation, and participation, contribute the recovery of the fi sheries resources. On the to making the system more governable. Thus, for other hand, the lack of a role model, inspiration Ban Klongthian, ways to improve the crab bank and leadership in the case of Ban Klongthian project implementation may be to encourage has resulted in slow progress and eventually the cooperation and make explicit what the benefi ts temporary halt of the program. of the project are. For example, giving small rewards, like a team t-shirt, to project members CONCLUSION may help promote participation in the crab bank project. Recruitment of new members and a new The overall governability assessment generations of leaders to the committee is likely to of the fi sheries system and the crab bank project help revitalize the project. More fi sheries groups in both villages showed that the key factors and associations should also be established to contributing to a high level of governability were induce fi shers’ participation, representation and the high diversity in the natural system, which collaboration. enables fi shers to diversify their livelihoods, the medium complexity in the social system with LITERATURE CITED less problematic relationships, and the relatively low dynamics and the smaller scale in both Aksornkoae, S. 2007. Mangrove forest – the the natural and social system-to-be-governed. treasure of sufficient economy in coastal For the governing system, factors fostering communities. J. Forest. Manage. 1(1): 1–13. governance were the high dynamics and high [in Thai] level of coordination and collaboration within Arunakasikorn, T. (eds). 1995. District Council the community supported by governing actors and Tambon Administrative Organization that play critical roles at different stages in the Act 1994 (B.E.2537), Winyuchon. Bangkok. implementation of the crab bank project. In terms [in Thai] of interactions among systems, the high level of . 2000. The Local Administration Act participation and representation, and the high level 1914 (B.E.2457) and 1999 (B.E.2542), of appreciation and collaboration are key factors Winyuchon. Bangkok. [in Thai] contributing to the high level of governability. With Cha-am Municipal Office. 2011. General regard to factors inhibiting the implementation and Information of Cha-am Municipality. success of the crab bank project, the study found [Available from: http//www.cha-amcity. that the village location is an interesting feature. go.th]. [ Sourced: 5 November 2010]. In addition, high diversity and high complexity Chuenpagdee, R. 2011. Interactive governance for in the systems-to-be-governed may be inhibiting marine conservation: An illustration. B. Mar. factors. Sci. 87(2): 197–211. 438 Kasetsart J. (Nat. Sci.) 46(3)

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