ISSN 1198-6727

ISSN 1198-6727 FisheriesCenb'e

Volume 4 Numher2

Fisheries ~ ~

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The Centre.) University of British Columbia ~ j:j 2204 Main Mall ~ Vancouver.,B. C,.) Canada

ISSN 1198-6727

~ c:.~ CONTENTS

ill Acknowledgements and Dedication

OVERVIEWS OF REINVENTING FISHERIESMANAGEMENT 1 Reiriventing : the Symposium Tony Pitcher 2 Synopsis of the Symposium '..."'..' '.'.' ".'.."'."..."'.' Craig Harris 10 New contexts, New tools ..., Nigel Haggan 11 Reinventing the Tree Nigel Haggan

TRELA ~N LECTURE 15 Fisheries managementafter 2000: will new paradigms apply? (Abstract) John Caddy

ABSTRACTS AND DISCUSSION

THEME 1: THE PRODUcrION BASEAND ECOSYSTEMMANAGEMENT

Keynote Address 16 The trophic cascadeand food web management JamesKitchell 17 Discussion Points of View -Theme 1 21 The control of undesirable introduced speciesin small freshwater lakes: what we should learn from past experiments Pierre Magnan 22 Constraints on the intensity of trophic linkages in lake food webs Bill Neill 23 Ecosystemmanagement: the next step & 24 The understanding and prediction of marine production: considerations for the future , James Scandol 25 A new method to identify individual natal stream sources of salmonids and migration patterns of fish (posten Sam Wang & R.Brown 26 Using mass-balance ()food web models to structure dynamic (ECOSIM)simulation models (demonstration) ""'."""..""""""""""'" . Villy Christensen & Daniel Pauly 26 General Discussion of Theme 1 Kathy Heise & Alida Bundy

THEME 2: AsSESSMENT,RISK AND ADAPTIVE MANAGEMENT

Keynote Address 30 Rediscovering adaptive management: a framework linking science and decision making in . a remventedfi sh enes.K management. , eI.thS' amsb ury 31 Discussion Points of View -Theme 2 33 An overview of tuna assessmentand managementworld wide Alain Fonteneau 35 Predictive models of growth, survival and reproduction. Jarl Giske 36 Benefits of taking uncertainties into account when making decisions in fisheries management: example applications of Bayesian decision analysis. Randall Peterman 37 Intelligent fisheries assessmentin an uncertain world Laura Richards 38 Fixed exploitation rate strategies for coping with effects of climate change Carl Walters & Ana Parma 38 General Discussion of Theme 2 Alida Bundy & Kathy Heise

THEME 3: THE RoLE OF POUCY IN REsPONSIBLEFISHING

Keynote Address 41 People, purses and power -some features of the debate surrounding a developing fisheries policy for South Africa Kevern Cochrane

page , Reinventing Fisheries Managemnt, Workshop Report, page jj :i

43 Discussion '~ ~ Points of View -Theme 3 ;j! 44 Regime formation and community partictpation in fisheries management Craig K.Harris 45 Measuring the unmeasurable: multivariate interdisctplinary method for determining the health of fisheries Tony Pitcher, David Preikshot, Daniel Pauly & Alida Bundy 46 Politics and fisheries Gert van Santen 47 Modifications of Scotian Fundy groundfish management for sustainable use Michael Sinclair 48 A new paradigm for managing marine fisheries in the next millennium Michael Sutton 49 First world foreign and third world fisheries: impact on resources, economy and society (poster) ~ "."""""'..".."'."..' Alida Bundy & Tony Pitcher 50 General Discussion of Theme 3 Dave Preikshot & Steven Mackinson

THEME 4: THE ROLE OF THE lNTERF ACE BE1WEEN THE SOCIAL AND NATURAL SCIENCES

Keynote Address 51 F . h . t . d d ..akin David Policansk 52 DiscussionIS enes managemen : SCIence an eCISlon mg y

Points of View -Theme 4 53 For fishers or fishes?: a comment on the development of an interdisciplinary science of fi h . d f . h .t Tony Davis 53 A sbridge enes overan troublingIS enes managemenwaters? Strategies for, integrating natural and , social science for

sustainable fisheries Lawrence Felt 54 Enlarging the shadow of the future -avoiding conflict and conserving fish in a novel management regime off South Devon, UK Paul Hart SS F . h . t I f . al .7 Svein j entoft S6 ObservationsIS enes managemenon the social: a ro sciencee or SOCIof fleetsCIence. dynamics and local knowledge

Thomas McGuire 57 Dave Preikshot

THEME 5: THE RoLE OF ECONOMIC TOOLS IN REINVENTING FISHERIES MANAGEMENT

KeynoteAddress 58 FISo h enes. management ,po lin' cs and mar ke ts Rogen valdur Hannesson 58 Discussion Points of View -Theme 5 59 New directions in management: lessons from the collapse of Atlantic Canada's groundfishfishery Anthony Charles 60 Natural assets and national wealth Philip Neher 61 Cooperation and Quotas Anthony Scott 62 linking fish price and fishery practice through eco-certification, labelling and crediting , ,... Sproul 63 Uncertainty and the role of economics in reinventing fisheries management Rashid Sumaila 63 General Discussion of Theme 5 Dave Preikshot & Steven Mackinson

THEME6: THE ROLE OF INSTlTUflONS AND PARTNERSHIPS

Keynote Address 64 Aquatic resources education for developing world needs Meryl Williams 64 Discussion Points of View -Theme 6 65 A fisheries agreement with the Nisga'speople: the first step towards a and fishery management system Michael Unk

1 Reinventing Fisheries Management, 1996, page jjj

66 Reinventing sa1monmanagement: changing the burden and nature of proof in sa1mon conservation programs to support a new management paradigm Nancy Mundy 67 Scienceand the establishment of marine protected areas Richard Paisley 68 Fostering sustainable development & research by encouraging the right kind of institutions Rice 69 The need for partnerships in reinventing fisheries management (postel) Indrani Lutchman 69 A Point of View from Mexico Antonio Diaz de Leon 70 General Discussion of Theme 6 Peter Tyedmyers & Richard Porter

71 BIOGRAPHIESOF KEYNOTE SPEAKERS

76 SYMPOSIUM PROGRAMME

80 LIST OFSYMPOSIUM P ARTIGPANTS AND THEIRADDRESSES

A CKN 0 WLEDG EMENTS This symposium, which was larger than the normal workshops mounted by the UBC Fisheries Centre, was capably organised by the Fisheries Centre's Events Officer, Ying Chuenpagdee. Many other graduate students freely gave of their time and enthusiasm to make the symposium a success.In particular we are grateful to those who acted as Rapporteurs for the discussion sessions and produced their report files to a tight deadline after the meeting

The Fisheries Centre would like to thank the financial sponsors of this meeting:

Faculty of Graduate Studies, UBC Vice President Academic's Office, UBC Ministry of Environment, Lands & Parks, Government of British Columbia (Fisheries ResearchBranch)

Edited by Tony J. Pitcher

84 pages@Fisheries Centre, UBC, 1997

OVERVIEWS OF REINVENTING world leaders in our subject have expressed FISHERIES MANAGEMENT the pessimistic view that no fishery has ever been properly understood or managed. Some consider that we have to conduct experiments with our fishery resources in order to hope to do any better. Some see a Reinventing Fisheries Management: solution in quantifying our ignorance. the Symposium Others look to the sodal sdences to bring salvation by trying to understand people as TonyJ. Pitcher well as manage fish. This symposium seeks Director, UBC Fisheries Centre, Canada the new paradigm that will place these ideas in perspective and make them work.

From February 21st-241h1996 over 100 fishery New ways of looking at things entail researchers gathered at the Fisheries Centre, interdisciplinary synergy between biological, UBC,Vancouver, to discuss the reinvention of ecological, social, and economic foci. This is fisheries management. This FisheIies Centre a most difficult thing to achieve not least Research Report volume provides the becauseexponents of these disciplines find abstracts of papers presented that meeting, it difficult to step outside of their walls are together with edited reports of discussion they are invariably rewarded in their careers concerning the questions and issues raised. only for staying securely within them.

Revised symposium papers (with some others The symposium focusses on 6 theme areas, that have been solicted) have been submitted each led by a member of UBC Fisheries for a peer-reviewedbook entitled Reinventing Centre's International Advisory Coundl. FisheIies Managementin the Chapman& HaD Fish & FisheIies SeIiesedited by Tony Pitcher, Understanding of the production base Paul Hart and Daniel Pauly. The volume is and the ecological impact of harvesting scheduled to appear in 1997. in freshwater and marine ecosystems. (Dr Jim Kitchell) Judged by its recent track record, fisheries Assessing fisheries intelligently, quant- management certainly seems to need ifying risk and learning to make reinventing. Recently, the reputation of management adaptive. (Dr Keith fisheries scientists has suffered a serious Sainsbury) downturn. It seems that, despite our best Shaping policy to make fishing efforts, fisheries world-wide have become responsible and fit both the sustainable severely depleted and, along with reductions limits of the resource and the ambitions in the size of fish harvested, fish of humans (Dr Kevern Cochrane). communities shift towards small rapid Redudng conflict and fostering growing species. These symptoms have been consensus by understanding fishing accompanied by a series of fisheries collapses communities (Dr David Policansky) that have riot only been largely unforeseen Mitigating resource depletion through even by our most advanced assessment innovative and appropriate economic methods, but have also brought about instruments (Dr Rognvaldur Hannesson) disastrous economic consequences. Such Fostering sustainable development and things have even occurred in Canada,a nation the key research by encouraging the with probably more top-rate fishery scientists right kind of institutions. (Dr Meryl per capita than any other. Confidence in our Williams) discipline has been eroded at the very time when we need it most if we are to do anything By attempting to integrate across these to make fish harvests sustainable in the multidisdplinary themes, our ambitious overpopulated world of the coming century. objective is to help create a fresh synthesis fisheries.and a new paradigm for the management. of So is in now a state of flux and many feel that we are at a cross-roads where new paradigms compete for attention In addition, .the symposium included the and evidence of their utility. Some of the second Larkin Lecture, covering the same . Reinventing Fisheries Managemnl, Workshop Report, page 2

broad 'Reinventing' theme, delivered by Dr fisheries management would be based on john Caddy. co-existing multiple paradigms which incorporate ecosystem consid-erations, This report gives three oveIViews of the environmental fluctuations, and socio- symposium from participants. An abstract economic factors. Academic instit-utions the Larkin Lecture abstract appears next. (The can contribute to improved fisheries full Larkin Lecture is to be published after management by a more participatory peer review in Reviews in Fish Biology and approach, by promoting inter-disciplinary Fisheries.) teamwork with stakeholders in fisheries, and by breaking down specialization and The major section of the report comprises regionalization within fisheries studies. abstracts of the papers presented each Managementinstitutions can contribute to followed by discussion collated by improved fisheries management by rapporteurs and edited. Rapporteurs, who constructing consultative management worked in pairs, were chosen from among the frameworks that incorporate watchdog Fisheries Centre graduate students. The pairs functions and implement precautionary of rapporteurs have had the opportunity to principles. Governments can contribute to submit synopses of the main points raised in improved fisheries management by discussion of their sessions as Points of View devolving management responsibility to for the Reinventing Fjsheries Management appropriate levels in society, including Book, co-authored with the Chairs of their coastal communities and individual use session rights. The extension of modern technology from fisheries exploitation to Each of the six symposium themes opens improved fisheries management will make with an abstract of the Keynote Address, possible geo-temporally defmed access followed by questions and discussion of the rights to near-shore and shelf resources. paper. Points of View papers appear next, Despite many previous, current and each with its associated questions. Most emerging international agreements, theme end with a general discussion. concern remains about the control of exploitation in international waters. l1le report concludes ~th brief biograptUes of the keynote speakers, the programme of The SyrnPOSiUIDwas orgarnzed as a series the symposium, and addresses for the of keynote addresses, each followed by registered participants. several points of view, with evenings allocated for unstructured discussion.

Theme 1: The production base and Synopsis of the Symposium ecosystemmanagement The first keynote on Wed 21 Feb 96 was presented by James F. Kitchell from the Craig Harris ;~ Department of Sodology Centre of Umnology at the University of Michigan State University, USA Wisconsin at Madison, who talked about J the Production Base and Ecosystem -.,.,~ The syDlposiULnbegan on Tuesday 20 Feb Management. it is a very important top 1996 with the Larkin Lecture, presented by examine the phenomenon of trophic Dr. John F. Caddy, Director of Marine cascade,the feedback from higher levels of Resources Section in the Division of aquatic food webs to lower levels. By Fisheries, United nations Food and knowing this, once can, for example, Agriculture Organization, Rome, entitled manipulate piscivory to alter cladocera Fisheries Management After 2000: Will New (daphnia) populations, and thus control algal blooms. human causes of trophic Paradigms Apply? Caddy noted the current situation of over-exploitation and over- cascades include nutrient loading (which capitalization, growing demand and prices, can be controlled by land use controls, and ecosystem impacts of population buffers, and sewage treatment). exploitation (Which can be altered by increase. He suggested that improved information and catch limits). and species ReinventingFisheries Management, 1996, page 3

introductions. Bodies of water demonstrate consensus on the need to include both a tipping point between algal bloom and environmental fluctuations and level of non-bloom. harvesting and perdition in management models. Only marine protected areas allow Pierre Magnan from Department de Chimie- reconciliation of the different natural time biologies, Universite du Quebec a Trois- scales with those of fishers and markets, Rivieres, presented a point of view about the By way of illustration, he discussed a Control of Undesirable introduced SpeciesIn model of Lake Turkana (East Africa). He Small Freshwater Lakes. he advocated an suggested that a mature system is approach based on the principles of characterized by the retention of detritus, integrated pest management developed in and that carrying capacity is equal to . This approach will be used by respiration plus detritus import. the Quebec Government to control white sucker in brook char lakes of eastern The fourth point of view was presented by Canada. James Scandol of the Fisheries Centre at the University of British Columbia at Bill Neill from the Fisheries Centre at the Vancouver, on The Understanding and University of British Columbia presented a Prediction of Marine Production: point of view about Constrains on the Considerations for the Future. To make Intensity of Trophic Unkages In Food Webs. predictions of more applicability to models of food web structure permit management, scientists need to pay more ecosystem-scale fisheries management to attention to the role of physical and maximize energy flows and in turn biological scale in production, to quantify maximize yields of target species at upper the consequences of animal behavior for levels. The major constraint to maximizing production, and to understand the energy flow and in turn maximize yields of relationship between understanding and target species at upper levels. The major prediction within science and constraint to maximizing yield is not management. he suggested that fractals thermodynamic efficiency but predictive may be useful for modeling across scales. uncertainty. Uncertainty is greater for the effects of bottom-up perturbations than for In the discussion which followed, Tony top-down perturbations. For either type of Charles suggested a distinction between perturbation, uncertainty of effect is ecosystem management versus ecosystem- greatest in the intermediate levels which are based management. most important for affecting yield. Uncertainty is proportional to system Theme 2: Assessment, risk and adaptive productivity and biodiversity. given current management knowledge, predicting, regulating, or at least tolerating large variance in food web The afternoon session on 21st Feb. 96 responses become necessitates if fisheries began with the key note address by Keith are to be managed near maximal production Sainsbury of the Pelagic Fisheries capacity using ecosystem approaches. As a Resources program of the Commonwealth specific example, algae which are edible by Scientific and Industrial Research zooplankton respond more to an increase in Organization in Hobart, Tasmania, phosphorous than do larger algae; thus, Australia, on Rediscovering Adaptive smaller grazers displace larger grazers Management: A Framework Unking Science (Daphnia). Unfortunately, smaller grazers are and Decision Making in a Reinvented not as interesting to planktivorous fish so Fisheries Man-agement. Adaptive their populations decline. management has been developed and applied in only a few fisheries, and most of The third point of view was presented by these have relied on passively adaptive, Daniel Pauly of the International Centre for rather than actively adaptive, management living Aquatic Resource Management at regimes. Formal applications of adaptive Manila and the Fisheries Centre, University management include a passively adaptive of British Columbia, Vancouver, on regime in the Australian orange roughy Ecosystem Management: The Next Step. fishery. an actively adaptive regime in the Multispecies modeling efforts will lead to a north-western Australian multispecies Reinventing Fisheries Milnagemnt, Workshop Report, page 4

trawl fishery, and soon-to-be-implemented actively adaptive management regime in the The third point of view was presented by Great Barrier reef. The use of adaptive Randall Peterman of the School of management requires a significant and Resourceand Environmental Man-agement, sustained effort to contain and maintain the Simon Fraser University, Burnaby, British mutual commitment of stakeholders in the Columbia. Large variability and estimation fishery. The major constraints to greater use errors in fisheries date make estimating of adaptive management are (1) the risks and identifying appropriate reluctance of management agencies to management strategies difficult. Bayesian commit to an explicit management strategy, statistics can be used to place degrees of (2) the reluctance of industry to accept catch belief on different estimates of abundance reductions without a high level of proof, and or on underlying relationships in dynamics (3) the difficulty for scientific institutes to of fish and fleet, so that decision analysis maintain a focus for lengthy periods can calculate the optimal management (institutional attention deficit disorder). action for each specified objective. '~ 1j;., In the first point of view following Examples applying these methods to Sainsbury's talk, Alain Fonteneau of choosing appropriate management actions ORSTOM and the Interamerican Tropical for harvest rates for marine species, for Tuna Commission, currently working at La opening an in-river fishery of anadromous Jolla, offered an Overview of Tuna species, and for stocking lakes with Assessment and ManagementWorldwide. juvenile trout, illustrate how taking uncertainties into account may affect the The highly migratory nature of the tuna appropriate decision about the level of stocks means that their management must precaution. The expected value of be undertaken by a group of international including uncertainty is the difference in commissions. For ecological and economic expected benefits between the outcome of reason, the temperate tuna stocks are fairly a full decision analysis versus the outcome fragile whereas the tropical tuna stocks are of a decision based on. best point fairly stable and resilient. Stock assessments estimates. The values of improving of tuna on which to base management are information through research programs made difficult by the complexity of the tuna can be calculated by comparing the " migration patterns the difficulty of aging the expected benefits from a decision analysis ; catch (unlike beet), and the difficulties in with the current estimate of variance on measuring trends in abundance. The some uncertainty versus another with a ":- 1 ecological problems of bycatches, both with lower variance. ~ purse seines and longlines are of increasing importance. Laura Richards of the Pacific Region oj

Science Branch of the Dept. Fisheries and ,-§ The second point of view was presented by Oceanspresented the fourth point of view ,2 Jarl Giske of the Dept. of Fisheries and of the afternoon, on Intelligent Fisheries Marine Biology at the University of Bergen in Assessment in an Uncertain World. Norway, on Predictive Models of Growth, Although data collection procedures can Survival and Reproduction. A dynamic be improved inter alia through industry programming model of Barents Sea capelin partnerships, many types of analyses still ~~ ,:~ provides an example of the use of a require historical time series. In the short 1 predictive model to model historic events in term these can be provided by the order to reveal causal relationships. The use inclusion of non-traditional data in stock assessmentsand the analysis of traditional of predictive models to antidpate the future ~ is currently out of the range of sdence data in novel ways. current investment in " because of the chaotic nature of the database in stock assessments and the analysis of traditional data in novel ways. , weather. improved understanding of the ~ :; predictive celestial and planetary events and Current investment in database archives ~ processes that cause osdllations in ocean and documentation can be a legacy to the climate and fish stocks is needed to enhance next generation of analysts. the predictive power of scenario of modeling in fisheries biology. Carl Walters of the Fisheries Centre, Reinventing Fisheries MilDagement. 1996, page 5

University of British Columbia, Vancouver management procedures and approaches. presented the final point of view of the This will inevitably also require greater afternoon on Fixed Exploitation Rate participation by users in the management Strategies for Coping With Effects of Climate of fisheries. Change. Harvesting a constant fraction of the stock of a spedes each year produces The first point of view following harvest that are within 15 percent of the Cochrane's talk was presented by Craig theoretical optimum that could be achieved Harris. Michigan State University, on if all future climatic fluctuations were Regime Formation and Community known in advance. It may be more cost Participation in Fisheries Management. effective to invest in research on how to Whereas the traditional view of fisheries implement fixed harvest rate strategies than management invested authority in local to invest in research on explaining and communities, in the modern view authority predicting climatic effects. As an example of is invested in that nation-state, whence it the former, research might investigate is partially transferred to international public attitudes toward fishery management. treaty organizations. The nation-state Successful implementation may require a destroys the authority of the local combination of improved stock communities and implements hierarchical, assessments, and stringent regulatory top-down, command and control measures to restrict substantially the regulation, relying on science to determine proportion of fish at risk to fishing each best management Practice and advise year. mangers accordingly. In one post-modern view of management, Regime Formation, at Theme 3: The Role of Policy in Responsible least three major views of the goals of Fishing management compete for primacy; each view is advocated by powerful trans- The second day of the sytnposiUIn began national and national actors who attempt with a keynote addres.sby Kevern Cochrane to establish formal organizations of of the Fishery Resource and Environmental control by enrolling local actors in the Division of the United Nationals Food and particular view. In the other post-modern Agriculture Organization at Rome, on view of management, community part- People, Purses and Power: Some features of icipation, an assemblage of stakeholders, the Debate Surr-ounding a developing both local and non-local cooperate in Fisheries policy for South Africa. He joined managing the fishery. FAO at the end of last year after 17 years in South African Fisheries Management, and it The second point of view of the morning was on the basis of the south African was present by Tony Pitcher of the experience that he talked. Although the Fisheries Center, University of British adoption of a limited entry approach has Columbia, Vancouver, on Measuring the had substantial advantages for fisheries Un-measureable: A Multivariate Inter- utilization and conservation, with the disciplinary Method for Determining the democratization of South African the Health of Fisheries. To devise a taxonomy current system is being challenged by many of fisheries for the diagnosis of problems who had previously been excluded on the categories of ecological, technological, political grounds. In the past, South African economic and social attributes must be fisheries management has placed very happy considered; for each category IS to 20 emphasis on analyses of the status of the attributes are chosen. Principal resources and their potential productivity. In components analysis within each category an environment in which access may be and then of the components across the broadened substantially, with a definite shirt categories permits objective evaluation of toward greater involvement of smaller-scale the health of fisheries. operator, the hUInan considerations and iDopacts could becom~ even more Gert Van Santen, the remaining fisheries pronounced. Far greater emphasis that in officer at the World Bank at Washington, the past, therefore, needs to be placed on D.C., presented the third point of view, on analyzing the social and economic dynamics Policies and Fishery. The World Bank of fisheries, and incorporating these into started fisheries lending in 1962; since Reinventing Fisheries Managemnt, Workshop Report, page 6

then, 40 to SO fisheries loans have been fishery management process. Social and made. The Bank has stayed away from economic incentives for sustainable fishing situations where the resource was in must be created. question. Eight or nine years ago they were told to pay attention to fisheries manag- Theme 4: lbe role of the interface between ement. Fisheries man-agement is foremost a sodal sdences and natural sdences political process among humans in which income and access to the fish resources The fourth session began with a keynote redistributed between fishers, suppliers, address by David Policansky, the Associate consumers, processors, the State, the Director of the Board on Environmental scientific community, foreigners, locals, etc. Studies and Toxicology at the National Substantial uncertainty surrounds the Research Council in Washington, D.C.. on economic and social impacts of management Fisheries Management: Science and J measures on each of those stakeholders. Decision Making. He discussed the role of Nevertheless, the key constraints to science in the shrimp/turtle, tuna/dolphin, introduction of effective fisheries pollock/ sea lion, and salmon '.1 management are most frequently lack of controversies. In each case, the scientific experience on the part of the Government in conclusions were not obvious to at least managing the political processes or the one party in the dispute; in some cases, inability or unwillingness on the part of the they were not clear to nay of them. A good authorities to muster sufficient political scientific understanding reduces mistrust, ~ power to counterbalance private interests saves time and money, and encourages 3 who wish to maintain the status quo. coherent management; sdentific ;i uncertainty increases mistrust and " Michael Sinclair of the Canada Department incoherent management, and often :~ of Fisheries and Oceans, Dartmouth, Nova increases expenditure of time and money., Scotia, presented the fourth point of view, offend much better information would be on Modifications of Scotia Fundy Groundfish available if managers would rake the time Management for Sustainable use. An initial to design data collection into their workshop evaluated the problems with the managementregimes. implementation of single-species quota management for multi-species harvesting The first point of view of the afternoon technology of Scotia-Fundy groundfish. A was presented by Tony Davis of the Dept. second workshop, planned jointly with of Social and Anthropology at St. Francis representatives of the , Xavier University, Antigonish, Nova Scotia, discussed the strengths and weaknesses, entitled For Fishers or Fishes? A comment cost and benefits, of four methods by which on the Development of a Interdisciplinary conservation objectives can be met (quota, Science of Fisheries and Fisheries days-at-sea,dosed areas, gear restrictions). Management. While fisheries-focused social science research has experienced The final point of view of the third session considerable development over the last was written by Michael Sutton of the thirty years, its concerns, methods, EndangeredSeas Campaign of World Wildlife findings and analyses appear to have cj Fund International, London, UK, on A New exercised little if any influence with paradigm for Managing Marine Fisheries in respect to the design and implementation the Next Millenium. The paper was delivered of fisheries management regimes. Further, j by Indrani Lutchman from WWF. Fishery fisheries social research data and analyses, ," managers more concerned with political excepting the work of some resources than scientific realities have been compelled economists, seems to have revived little to ignore the implications of the best systematic attention and consideration by available science. Powerful social, economic the fisheries natural science research and political foresees drive unsustainable community. The development of an fishing. Reversing this situation will require interdisciplinary fisheries science and harnessing public support for a new approach to fisheries management will paradigm of management, The foundation of require considerable shirts in the currently this new model must be greater public prevailing presumptions and paradigms in involvement and accountabilitY in the natural and social science fisheries

1:::1 Reinventing Fisheries Management, 1996, page?

research. In order to accomplish partidpants.. Once the factors determining interdisciplinary, familiarity and cooperation are properly understood, the acquaintanceship, and institutional Devon management system could be used rearrangements are needed, and in other areas where a fishery is philosophical and conceptual perspectives, prosecuted by members of a closely knit and methodological and analytical community interact with each other predispositions, will have to be changed. indefinitely and repeatedly.

Lawrence Felt of the Dept. of Sociology at Svein Jentoft of the Institute of Social Memorial University in St. John's, Science at the University of Tromso, Newfoundland, presented the second point Norway presented the fourth point of view, of view, on A Bridge Over Troubling waters? on Fisheriesmanagement: A Role for Social Strategies for Integrating Natural and Social Science? If social scientists were to Science for Sustainable Fisheries. Because of become fully involved in the fisheries differences in methodologies, types of data, management decision-making process, and interpretive frameworks, integrating they would contribute to the design of natural and social science research within management institutions, and as providers the context of specific fisheries management of critical feedback to the management plans has proven be to be fairly elusive (with process particularly on social impacts. the exception of some highly quantifies They would function both within econoIn.ic decision-making models). A three management councils and an analysts of year interdisciplinary study of ecological the management council process. However. knowledge of fishers and plant works in fisheries management could also benefit Newfoundland suggests a number of ways in from the purely intellectual role of social which natural and social science can be science as independent, critical skeptic. brought together for more effective (This provoked an ongoing discussion as management, including cost-effective, to whereto it was better to be inside the participatory and inter-disciplinary tend pis sing out, or outsider the tent assessment methodologies. This three-year pis sing in. Some wanted to be outside the project has brought together biological tent pis sing in ). There is a tendency of scientists, economists and social scientists managers to ask social scientists to speak to conduct interdisciplinary studies of for the fishers; but suppose fish could talk fishers' perception of resources. They work -would the management process then as teams with a member from each need ? There is also a tendency discipline; the meaningful incorporation of for social scientists to playa Mephisto clients is necessary for effective role, helping Faust to deny his guilt. management. The final point of view of the afternoon as The third point of view of the afternoon was presented by Thomas McGuire of the presented by Paul Hart of the Dept. of Bureau of Applied Research in Zoology at the University of Leicester, UK, Anthropology at the University of Arizona, on Enlarging the Shadow of the Future: on Observations of the Social Science of Avoiding Conflict and Conserving Fish in a Fleet Dynamics and Local Knowledge. Novel Management Regime off South Devon. Reviewing several contested issues in A voluntary system for partitioning the maritime social science -the skipper effect inshore area between the crab pot fishery, and fleet dynamics, folk management, the trawlers and the scallop dredges off adaptation to chaotic systems -suggests South Devon has been effective for the past that the debates, and much of the fine- 20 years. The agreement works because the grained empirical work underlying them, fishery is composed of people who evolved in the context of largely academic repeatedly interact over in indefInite period contests over paradigms such as cultural (from fishing communities, and/or form , political economy, and political families that have fished for generations) sot ecology. The political ecology approach is that cheaters are likely to be identified and actor centered, focuses on strategizing punished readily. Such a system can best be within constraints, examines the modeled using the Prisoner's Dilemma with limitations of folk management, and is long term interaction between the value driven toward social justice. Political Reinventing Fisheries Managemnt, Workshop Report, page 8 ..

ecology seems to combine prior concerns and stakeholders, (2) the burden of proof with individual and household adaptations m balandng risks of lost benefits versus of to ecosystems and environments, and with stock collapse, (3) the postponability of local knowledge -the domain of cultural conservation actions, (4) the fundamental ecology -with the problematic of political effectiveness of the current system of economy -relations of production, lass .management. While the first three have formation, the penetration of capital, and undergone some modification, the fourth the loss of local power and autonomy. This remains firmly entrenched. Fisheries developing paradigm offers the potential for management must recognize the need for close interface with the natural sciences, multidimensional solutions to multi- both theoretical and applied. dimensional problems. And must realize that the answer to the problem depends Theme 5; The Role of Economic Tools in on the biological, economic and social Reinventing Fisheries Management context. It is necessary to separate fishery conservation from the other issues. The Friday morning session began with a Efficiency equals the maximum benefit keynote address by Rognvaldur Hannesson form the minimum opportunity cost. of the Norwegian School of Economics and Business Administration, Bergen, on Philip Neher of the Dept. of Economics, Fisheries Management, Politics and Markets. University of Britisb Columbia, Vancouver The experiences of Newfoundland, Norway, presented the second point of view, on Iceland and the Faroe Islands since the Natural Assets and National Wealth. establishments of the 200 mile limit show Natural assets should be managed by that degree of dependency on the cod nations as components of the portfolio of fishery is not dearly related to degree of national wealth which yields real income to responsibility in the conduct of the fishery. benefit real people. It is not always the All four have suffered greater or lesser stock case that natural assets actually do this depletion, apparently in part as a result of because institutions are not in place to their own policies. (Newfoundland has been minimize transactions costs, free riding, managed by Ottawa; the Faros illustrates the and rent seeking. For fisheries, the mismanagement of experts; Iceland challenge is to craft management regimes illustrates user management). The cause of which have the paramount objective of this mismanagement is the predominance of maximizing wealth: the net present value political considerations in fisheries of future cash flows. The right incentives management. This can be remedied by must be in place to motivate people to market driven process with built-in think forward. Wealth maximization is a mechanisms to correct for over-exploitation, necessary primal condition for achieving Economic goals should be the primary goals other objectives such as community for fishery management, Economic tools development, acceptable working should be used to establish incentives for conditions for fishers and conservation. conservation in fisheries management. These other objectives will not be realized if they are pursued at the expenses of the }i\ In a comment after Hannesson's talk, Carl primal one. For a rights based fishery to :J Walters noted that a computer simulation of work, the rights have to be high quality, anchoveta shows the need to maintain a secure, durable, and transferable. The large window of variability. model of Japanese community control ";~. meets these criteria for effectiveness. The first point of view of the morning was presented by Tony Charles, Dept. of Finance The third point of view was presented by and Management Science, St. Mary's Anthony Sco~t of the Dept. of Economics. University in Halifax, Nova Scotia, on New University of British Columbia, Vancouver, Directions in Fishery Management: Lessons on Cooperation and Quotas. Although from the Collapse of Atlantic Canada's fisheries cooperatives have the potential to Groundfishery. At the roots of the collapses benefit fishers, fishers do not support of the Atlantic. Canadian groundfishery in their formation. While it has been the 1990's lie a set of entrenched attitudes proposed that diversity among fishers about (1) the appropriate roles of regulators prevents the trust needed for cooperation,

..:'1 Reinventing Fisheries M.wagement, 1996, page 9

it is not diversity but the fear of loss that how fisheries work, and the inadequacy of prevents cooperation. Even if a cooperatives current institutional arrangements to deal brings aggregate benefits to fishers, fishers with t~e problems at hand. The former fear that some members will be problem, the problem of uncertainty in disadvantaged by the rest. Members need fisheries management, exists both (1) the assurance that comes from fjxed because the fishery is a dynamic percentages shares in the catch and in other enterprise, and (2) because monitoring and benefits and costs. ITQ's automatically control are imperfect. First degree provide the fjxed-share building blocks that uncertainty, or stochastic variability of are needed. There are tow types of obstacles parameters of well-developed model, can to getting to fishery cooperative self be incorporated into management. True government. Permanent obstacles take the uncertainty, the lack of a well-developed form of internal resistance to power model, is difficult to incorporate into redistribution and lifestyle change. management. One example of this Transitional obstacles include the free rider distinction occurs in calculating the problem. For cooperative self government to optimal size of protected marine reserves work, fishers need assurance and security, where tradeoffs have to be made. for example, protected percentageshares. In discussion following the points of view, The fourth point of view of the morning was it was noted that different groups have presented by John Sproul of the Sustainable different views of a desirable future and Development Research Institute, University that different groups have different views of British Columbia, Vancouver, on Unking of what is the current problem. It was also Fish Price and Fishery Practice Through Eco- noted that there are also differentiated Certification, Labeling and Crediting. A interests within the ecosystem: (1) the growing need exits in many world fisheries components of the ecosystem (e.g. sea to initiate long-term market-based changes lions, sea birds), versus (2) the systemic to counter environmentally destructive interest (e.g. stability, diversity). economic forces. The market-place today fails to incorporate social and environmental practice information associated with the New Contexts, New Tools processes used to bring commodities from their points of extraction to consummation. NigelHaggan It is necessary to transform environmental FishenesCentre, lIBC, Canada and social information in a primary value- added component of and create market mechanisms that endorse fishery "When you open a can of worms, the only sustainability, social and environmental way to recan it is to use a bigger can" education, and consumer responsibility. (Caesar,j., De Bello Gallico). Locally appropriate and internally rec- ognized criteria would be used by a third party co-audits can be used to create a green This can has to be big enough to include chain). Information rating an activity's resource interests as well as all relevant quality would be conveyed by means of a branches of science. fishery eco-label. Government policy such as an eco-credit system could further The Gosed World Scenario encourage market demand of sustainable fishery practices. It is notable that there were three ;~ presentations on Marine Protected Areas Rashid Sumalia of the Dept. of Economics, (Pauly, Paisley and Walters). There appears University of Bergen, Norway presented the to be broad agreement that refugia are final point of view of the morning, on vitally important to maintain spawning Uncertainty and the Role of Economics In populations and biodiversity. There is less Reinventing Fisheries management. Most of agreement on the size, of the protected the problems in world fisheries today area, except that it will vary with the emanate from two broad sources --the lack nature of the ecosystem. Nonetheless, of adeQuate and correct information about

..,~~ Reinventing Fisheries Managemnt, Workshop Report, page 10

there is no doubt that MPAs are an and indigenous people who tend to view important piece of the puzzle. the world as a whole anyway. The ECOSIM spinoff (see p29) which Carl Walters Data Management described as the most exdting development he had ever worked on, adds Data are the zooplankton of fisheries some predictive ability to the Pauly - management, as one conference partidpant Christensen model. Uake Rice) remarked. The key to voluntary compliance is confidence in the information The most exciting aspect of these tools is I used to make management dedsions. The that they provide a framework upon which level of confidence is directly related to the to hang other streams of knowledge. ~ degree of trust which participants have in Relational database tools such as FISHBASE ... the source of the information. As discussed on CD-ROM developed by above, partidpants are much more likely to and Daniel Pauly. also provide a way to trust data which they have collected. The integrate meteorological and other problem is to move beyond the hoarding of databases which can provide important data for use as a weapon at the allocation insights to what is happening in an table. The tool here is an independent ecosystem. forum. David Policansky's comment that the credibility of any sdentific organization The real challenge is to apply these and the decreases as its involvement with next generation of tools to the integration management increases is particularly timely. of human communities into a whole ecosystem approach. To paraphrase Independent scientific bodies such as 'Werner Heisenberg, the modeller is not the universities, can provide data standard- system. ization and analytic tools to integrate these different, but vital streams of knowledge. Words of Caution The work and input of social scientists evaluating local knowledge, as reported by It is unlikely that any number of new tools Lawrence Phelps, and new tools such as and approaches will provide enough fish to FISHBASEwhich facilitate integration of local come up with expectations. The and indigenous knowledge are imp-ortant presentation on the Agreement in Principle contributions. The next stage is to work with between the Nisga'a Nation of BC and the the participants on data quality. Identify governments of Canada and BC as gaps and conflicts in the data and design reported by Mike Unk, meets this new data collection programs (or expand challenge head-on. In brief, the Nisga'a are existing progranls). In other words, to prepared to give up their small boat involve all stakeholders in the adaptive fishery in favour of harvesting salmon by management cycle. traps and fish wheels. Money made by this fishery will be re-invested in fish Coming to Grips with Whole Ecosystem production. This will create jobs, but will Approaches not re-create hunting lifestyle which goes along with chasing fish on the ocean. This Until recently, science tended to shy away tradeoff must be faced by all fishing from whole ecosystem approaches. Up communities in one way or another. service was paid to holistic approaches and integrated resource management, but, in New tools must also come with a foolproof reality, the concepts were too diffuse to idiot's guide to what they should be used grasp. The trophic cascades work reported for, when and how to use them, and their by Jim Kitchell is a notable exception. The limitations in tenns of reliability and ECOPATHmodel developed by Daniel Pauly safety. This is not to say that stakeholders and Villy Christensen, now in its second and the public need to understand the generation, provides a way to quantify and math behind complex computer models. evaluate what is happening at all trophic After all, a carpenter doesn't need to know levels from phytoplankton and bacteria to the physics behind an electric saw. just not whales and birds. This will speak to the to use it under water. hearts and minds of fishing communities A~

-;~ Reinventing Fisheries Management, 1996; page 11

marine productivity was far in excess of Re-inventing the Tree catching capacity. Government involvement in fisheries was limited to Nigel Haggan. annual catch reports. FisheriesCentre, UBC Canada A Good Time for Scientists

Introduction Technological change and the growth of local and world markets for fish led to This essay takes a slightly irreverent look at significant improvements in catching the notion of re-inventing fisheries ability. This phase was characterized by management, as stimulated by the Meryl Williams of ICLARM as a time when symposium. The argument is that fisheries fisheries sdentists were naturalists. They management grew organically as the went out on fishing vessels exploring new realization dawned that human intervention ground, developing fish-fmders, testing could drive fish stocks to the brink of and. developing new gear, etc. All in all, it extinction. Fisheries management never was was a lot of fun. The Age of Innocence was invented, it grew like a tree. The fIrst shoot also a time of aggressive expansion. on Canada's west coast sprang with Government agendes virtually threw declining salmon catch. It has since sprouted subsidies and low interest loans at fishers almost as many roots and branches as there and processors. Vessels grew in size and are stocks and species. The trees of Europe power. Fishing became increasingly are much, much older. Indeed, there is a lucrative. As a correlative, it is worth small, but vocal group which claim that the noting Gert van Santen's comment that Canadian tree is a European transplant. redudng the world's fishing fleet by 50% would only achieve a 10% drop in catch. Seeds from this ancient stock are now sprouting throughout the developing world. The Age of Experience Whether they should be fertilized with science or subjected to the Hack and Squirt Powerful vessels and onboard processing regime used by BC Ministry of Forests to allowed fishing at great distances and in extirpate unwanted growth is a question well weather and sea conditions which would worth asking. have tied up earlier fleets. Fish were found throughout their range. As a simple The growth of fisheries management and ab example, BC abalone were abundant until extensio, the complex symbiosis of the 1970s when the entire sub-tidal scientists and government, is traced, with spawning population became accessible to due apologies to the English poet William a SCUBAfishery. In a few years, spawning Blake, from the Age of Innocence to the Age was reduced to a point where all of Experience. Our collective ability to re- abalone fisheries are closed and will invent fisheries management depends on remain so for a long time to come. In the how successful we can become at learning example of North Sea plaice cited by Paul from experience without repeating past Hart, stocks which had recovered during errors. World War II, were fished down. To counter this, a juvenile rearing area or The Age of Innocence Plaice Box was set aside off the Dutch coast. What this didn't do was protect There are plenty of fish in the sea. Oral adults. As Carl Walters remarked, the only history abounds with tales of abundance. A sustainable fisheries are those where a vast Middle Ages trading empire was natural or established refugium exists. It is founded on the amazing productivity of the clear that these refugia must exist for both Baltic Sea herring. Old people in Ireland and adults and juveniles. First Nations in BC talk about being able to cross rivers dryshod on the backs of Increasing pressure on fish stocks between returning salmon. There was no need for the 1970s and early 1990s mark the time when the naturalist was upstaged by the management in those early days because statistidan and stock modeller. This Reinventing Fisheries Managemnt, Workshop Report, page 12

period is best characterized by Peter Pearse' famous phrase, Too many boats chasing too Managementand science are most needed few fish (Pearse, 1982). Computer models, when stocks are depleted or endangered. harvest rates and quota sett~g became the Most governments are in a lean, tightfisted order of the day. In recent years, the mode compared to the expansionist times mathematical approach has come ~to of the 50s and 60s. The days are over question. The masking of declines ~ real when bad news for fish was good news for abundance by stable or ~creas~g CPUEand fisheries science. This vicious cycle where incorrect estimates of average age, e.g. the depletion prompts more management and ] Pacific Ocean perch fishery cited by Laura a greater need for science at a time when Richards are significant factors ~ this falling financial returns are down is a major off among the faithful. To quote Carl consideration for policy makers and Walters at the conference: We don't know scientists. enough about what's happening under the surface to give quota advice. SustainableFisheries Management

COlD1I1uniryOutrage and Political Heat Sustainable mangement is the key to sustainable fisheries. One way to approach One important effect of a major stock the design of fisheries management for the collapse is to bring fisheries management 21st Century is to ask three simple and science into disrepute. This is most questions: What are the elements of a obvious amongst the fishing communities sustainable fishery? Who participates in Gocal or geartype) affected. The community the development of policies and delivery outrage provoked by loss of livehihood and systems? and, How will it be done? The lifestyle has prompted a move to get social answers must address the Politician's scientists to clean up the mess left by Dilemma of balancing long-term biologists, economists and mathematicians. conservation against the immediate needs This is rejected by social scientists, at least of voters and/or powerful interests. in the person of Tony Smith, who feels Fisheries man-agement must become strongly that fisheries scientists have not workable, affordable and acceptable. reciprocated the effort made by social Failing that, the late Peter Larkin's axiom scientist to learn the language and tools of You can't get there from here will be the fisheries science. Smith also takes a strong epitaph of fisheries as we know them. position on involving communities in the dialogue. It is less clear, at least to this What defines a sustainable fishery? writer, how one group of scientists learning another's secret language, will make science While it is neither possible nor desirable to more relevant or accessible to the create a rigid formula for the world's grassroots. fisheries, it seems likely that some basic criteria could be applied. These might To summarize. Over the last 30 years, many include a defInition of sustainability which of the world's great fisheries have gone from includes the ecosystem and environment

enormous abundance to depletion. At the as well as targeted stocks. Put another {::i same time, fisheries science has Cycled from way, the maintenance of biodiversity. the generalist approach of Meryl Williams' Making maximum use of the productive naturalist, through a long affair with capacity of the system. Ensuring that high ':1 economics and mathematics, to today's quality benefits continue to flow to tendenCy to look to social scientists and stakeholders and the general public and fishing communities for answers. Depletion harmonization ~th other resource reduces or negates returns to the country as sectors. This last is particularly important a whole. More importantly, it impacts the for coastal or freshwater fisheries which livelihood and lifestyle of communities. The must compete ~th other industry, but has collapse of Canada's northern cod fishery implications for oceanic fisheries also. destabilized whole communities and has cost $2billion so far with no end in sight. Recent work reported at the conference by Dr Tony Pitcher, is a start to quantify and Pruning The Tree analyze the attributes of different

I~ Reinventing Fisheries Management, 1996, page 13 fisheries. cumbersome bodies and tedious processes, but is this any worse than the How to Make PoUdes for Sustainable current system where stakeholders Fisheries? compete for public support and the one with the deepestpockets wins? The old expansionist policies of government or government-sponsored development Garity and Perspective agencies spawned the fleet expansion/stock depletion cycle. New policies must speak to The secret languages of biology, the hearts and minds of both consumptive economics, mathematics, social and other and non-consumptive interests. The only sciences are virtually impenetrable even way this can happen is to include these between disciplines. It would be tempting interests at the policy table. New policies for the experts to reach a consensus need to be road tested and illustrated by amongst themselves first. The downside is specific and relevant example to determine that it would present stakeholders and the whether they meet the tests of workability, public with yet another fair accompli. If affordability and acceptability. The bare the design process for new fisheries essentials of policy making are inclusivity, management systems is to succeed, it perspective and clarity. must go beyond the mixing of indigestible ingredients in the mere hope of a new Inclusiviry recipe. It must achieve an element of synergy which has proved elusive. Fisheries policy decisions involve people, fish and the environment. People have some The prindple of clarity requires the ability to represent themselves. The translation of these secret languages. This question of who speaks for fish and demystification need not trivialize sdence, environment is much thornier. The old nor talk down to fishers and their answer was government, but questions communities. It is rather a broadening of persist about the relationship between the scope of sdence to include non- government and industry. Tradeoffs traditional data sources and the intuition between different resource sectors and of those who spend their lives on or beside other countries are also an issue. the water. After all, the idea of intuition is acceptable in the sdentific community too. Another answer is by one or more of the organizations who have appointed Each branch of formal science, and equally themselves as the conscience of the importantly, community pers-pectives, environment. Not everyone is happy with local environmental knowledge and the that. Yet another answer is by the fishers insights and experience of community themselves, after all who has most to lose? members can be seen as a lens. The In the absence of consensus, the developed challenge, in the case of a specific fishery, world has reverted to the animal trials of is to find the right lenses and focus them mediaeval Europe (where, for example, rats correctly. This will require the could be brought into court for damaging a participation of skilled facilitators and grain crop). The US Endangered Species Act mediators, at least until the participants and the spotted owl is a case in point. There get to know and understand each other. are two problems with this. First, the courts are a win or lose option. Second, court Workability -The Perception of Fairness decisions are long on don'ts but devoid of direction or resources for implementation. Cops and Robbers systems do not work outside of a police state with limitless The real issue, however is that the approach resources and dire penalties. Voluntary is dualistic, people vs fish, one gear type vs compliance is the core of workable another, logging vs fishing, environment vs management systems. Voluntary people, and so forth. The principle of compliance can only exist in a system indusivity requires the presence of every which is perceived to be fair. Although group who believes that they have an fairness is an essentially subjective quality. interest. No doubt this will create the following elements must be present: ReinventingFisheries Managemnt, Workshop Report, page 14

.a sense of participation in system design; .trust in the information which underpins the system; .participation in information gathering and analysis .assurance that the system provides the best possible guarantee of sustainable, high-quality benefits.

Affordabllity One key to affordability is to transfer the responsibility for data collection from government to the fishing community. They know where the fish are. They know the local conditions. They have better boats. Above all, there are more of them. The best of all arguments is that fishers will put faith in data they have a hand in collecting. This is not to let government off the hook. Profitable fisheries generate downstream employment and wealth for the nation. Government has a role in generating economic development and a responsibility to re-invest revenue from taxes paid by fishers in the resource. That said, the relative contributions need to be defined. At a minimum, government has a responsibility to lead or participate in the design of science and the audit the results of management. The problem of depleted resources is much more complex. This does call for a long-term " } investment by government. Regardless of ! shoulds and oughts, government is unwilling to carry the cost of stodk rebuilding and science in times of severe fiscal restraint. There is an old adage that you catch more flies with honey than vinegar, i.e. that incentive is better than threat. Tony Pitcher's notion of Primal Abundance, (defrned as the amount any system produced prior to modern industrial fisheries) can set a target :'?] which government and stakeholders can :]: work towards (pers. comIn.). ;,

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