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Indigenous Perspectives and Conventional Fisheries Management

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Indigenous Perspectives and Conventional Fisheries Management Navigating the Tides: Indigenous Perspectives and Conventional Fisheries Management in the Tropical Rock Lobster Fishery, Torres Strait, Australia Annie Lalancette A thesis in The Individualized Program Presented in Partial Fulfillment of the Requirements For the Degree of Doctor of Philosophy (Special Individualized Program – Social Science) at Concordia University Montreal, Quebec, Canada March 2017 © Annie Lalancette, 2017 CONCORDIA UNIVERSITY SCHOOL OF GRADUATE STUDIES This is to certify that the thesis prepared By: Annie Lalancette Entitled: Navigating the Tides: Indigenous Perspectives and Conventional Fisheries Management in the Tropical Rock Lobster Fishery, Torres Strait, Australia and submitted in partial fulfillment of the requirements for the degree of Doctor of Philosophy (Special Individualized Program) complies with the regulations of the University and meets the accepted standards with respect to originality and quality. Signed by the final examining committee: Chair Dr. Charles Reiss External Examiner Dr. Derek Johnson External to Program Dr. Daniel Salée Examiner Dr. Peter Stoett Examiner Dr. Dylan Fraser Thesis Supervisor Dr. Monica Mulrennan Approved by Dr. Ketra Schmitt, Graduate Program Director Chair of Department or Graduate Program Director May 16, 2017 Dr. Paula Wood-Adam, Dean, School of Graduate Studies Dean of Faculty Abstract Navigating the Tides: Indigenous Perspectives and Conventional Fisheries Management in the Tropical Rock Lobster Fishery, Torres Strait, Australia Annie Lalancette, PhD Concordia University, 2017 The thesis aims to gain a better understanding of opportunities for and constraints to the advancement of indigenous rights and aspirations in State-controlled fisheries. It explores the perspectives of Torres Strait (TS) Islanders in the context of expected shifts in governance of the tropical rock lobster (TRL) fishery. This fishery is shared between traditional inhabitants, non- indigenous Australians and neighboring Papua New Guinea; each with differing objectives, interests and capacities. In 2005, the highest governance Australian body for fisheries in TS decided to introduce a Total Allowable Catch (TAC) and quotas for each sector. Implementation of quotas has been systematically delayed due to initial problems with setting the TAC and difficult allocation negotiations. In parallel, the High Court recognized in 2013 the native title rights of TS Islanders to 37,800 km2 of sea territory and non-exclusive commercial fishing rights. This study is informed by 13 months of field work undertaken in 2008-2011 involving a core component of standard ethnographic methods and three supplementary components consisting of preference interviews and rankings, cognitive mapping and future scenarios. Methods used were assessed in terms of their usefulness and appropriateness in the TS context. While recent methodological developments offer exciting opportunities, this thesis contends that these methods can only achieve their full potential when combined with other complementary methods, are well- tailored to the context and are conducted in an atmosphere of trust which can require significant prior involvement in communities. It is argued in this thesis that Islander practices contribute to social-ecological resilience and to all dimensions of Islander wellbeing. This thesis highlights how fisheries in TS are largely influenced by conventional management and neoliberal principles. It is shown that the current structure iii greatly favors Western views and has generally not considered the potential contributions of Islander perspectives to fisheries management. It is argued that the current regime has the potential to erode Islander institutions and practices and is at odds with Islander realities, values and aspirations. It concludes that in the wake of the Sea Claim, significant changes are needed to the current governance structure for the actualization of Islanders’ newly recognized rights. iv Acknowledgements This research endeavor began almost ten years ago and so many people have contributed along the way that I clearly do not have enough space here to be able to give justice to all of them. To all those that have crossed my path during this research journey, do know that I truly appreciate your help, whatever form it took. I am profoundly indebted to my supervisor Monica Mulrennan. To say that I would not be here without her is an understatement. From the very first days we met, she has been inspiring and has challenged me intellectually. But more importantly, she has shown unwavering support throughout the years acting in turns as a shield, as a rock and as a welcoming shoulder. Monica, I will never be able to express how grateful I am for all that you’ve done. I deeply value your friendship, admire your work and look forward to future collaborations. Obviously, this research would not have been possible without the support, patience, and generosity of Torres Strait Islanders. I would especially like to acknowledge community members of Badu and Yam who have welcomed me on their Islands, assisted me in my research and offered me their friendship as well as the Councillors and PBC members for their assistance and support. Special thanks are due to the many women who offered me care and support during my time in the field. In particular, Annie Reis, Mom Liz (Elizabeth Songoro), Sissi Aggie Hankin and Geiza Stow who did much more than open their homes to me. The same goes for Goiri Kaworo and his family who welcomed me in their house when I first arrived on Yam. I am also grateful to the many fishers who agreed to repeatedly “yarn” with me and share their knowledge, stories and views. I especially appreciate the opportunity to have gone diving. Dintu Tamwoy, Ralph Pearson, Richard Kepa and Simeon Baluz: thank you for letting me take up valuable dinghy space and tag along in the water. A special thank you to the factory managers on Thursday Island, Badu and Yam who found the time to talk to me despite their busy schedule, in particular to Richard Bowi and Goiri Kaworo who also shared their life story with me. Finally, I must acknowledge the important contributions of the rangers on Badu (Troy Stow, Frank Nona and Dick Williams) and Yam (Ned David (Halfman), David Baragud and Richard Kepa) for assisting me in organizing, preparing and conducting the scenario workshops and the women who participated and/or organized food for v these workshops. I also would like to thank the staff members of the TSRA Land and Sea Management Unit and Fisheries and the Rangers Program for their sustained assistance and support. In particular, Toshi Nakata who accepted to share his past experience as a Fisheries Officer and Vic McGrath, Damian Miley, Frank Loban and Steve Hall for their generosity in taking care of my wellbeing by either offering me a place to stay, socializing or ensuring that I arrive safely to destination. A number of non-Islanders have also contributed to this research project. Thank you to the TVH fishers that are established in TS that shared their experience with me as well as to the owners of the processor/carrier boat Providence. I also would like to acknowledge the past AFMA managers for taking the time to candidly share their experience and perspectives with me as well as all the staff in 2008-2011 for their help. Finally, special thanks are due to the CSIRO for acting as my host institution in Australia. Thank you Peter Bayliss for your continuous support during my fieldwork, for the welcoming hospitality, and the great conversations with or without apple brandy! Special thanks are also due to Eva Plaganyi, Ingrid van Putten, Darren Dennis, Marco Kienzle, Tim Skewes, Roland Pitcher, Ian McLeod, Sean Pascoe and Trevor Hutton for sharing their insights and to the researchers conducting the TRL survey in 2010 for giving me the opportunity to join and observe. Finally, thank you Sharon Tickell for providing me a haven – a space where I could recharge my batteries – and for offering your friendship. I am very grateful for the valuable feedback and guidance provided by my committee members Peter Stoett and Dylan Fraser. Special thanks to Colin Scott from McGill University who served as an additional member on my committee, introduced me to key Islander representatives during my first visit to Australia and provided valuable feedback based on his years of experience in TS. Multiple people at Concordia also deserve recognition for their support. These include staff at the School of Graduate Studies for their understanding and willingness to find accommodating solutions – Brad Nelson, Ketra Schmitt and especially Darlene Dubiel – as well as the whole Geography Department: professors, support staff and graduate colleagues. Now back to those who have been with me for the long run. Martin: While I know you don’t believe it, this thesis would not have been the same without your involvement. Our countless vi discussions about my research have allowed me to clarify my ideas and sharpen my arguments due to your relevant questions and insights. You have helped keep me balanced during these years by accompanying me through fieldwork –either virtually through Skype or by making your way up to Yam (!) – and by making me laugh, keeping me well-fed and reminding me to not take everything so seriously. My extraordinary family is, well... extraordinary. You have always been there: during the good and the bad, and the very bad. Marc, Steve, Julie, mom and dad: there are no words (nor enough space here!) to tell you how much I love you. Finally to all my friends who have contributed in various ways. Marie-France, Véronique, Paula (my home in Australia!), Magdalena, Tom, Pascale, and Ethan. Don’t know how I would’ve survived without you! Ending on a more formal note, this research was funded by an Endeavour Research Fellowship, doctoral fellowships from the Social Sciences and Humanities Research Council of Canada and from the Fond Québécois de la Recherche sur la Société et la Culture, and a Concordia University Frederick Lowy Fellowship.
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