The ecosystem approach to fisheries : issues, terminology, principles, institutional foundations, implementation and outlook PDF
Preview The ecosystem approach to fisheries : issues, terminology, principles, institutional foundations, implementation and outlook
The ecosystem approach to fisheries Issues,terminology,principles, institutionalfoundations, implementationandoutlook The ecosystem approach FAO FISHERIES TECHNICAL to fisheries PAPER 443 Issues,terminology,principles, institutionalfoundations, implementationandoutlook by S.MGarcia FisheryResourcesDivision FAOFisheriesDepartment A.Zerbi,C.Aliaume,T.DoChi,G.Lasserre ResearchUnitonLagoonEcosystems UniversityofMontpellier2 France FOODANDAGRICULTUREORGANIZATIONOFTHEUNITEDNATIONS Rome.2003 Copyrightedmaterial ToOdatbuhproehtiiguveshnaneoidnrldioaiioennrtzpsfiiaioemetwsrgesi,hmn.noaaatntttoiisrsooootnfneacstvopuetnsrehrcoemoedpforulUncnaontinyintytegdhedecodotauhpnnnNeaotadrtrttydit,eoiholnmfeitpsemrliptrytrhicateetoostirnehyoFcn,eneotrcaoienotdtxfiiypnorangoiertnssodtasfhrifeeromAoaagnntrlteioeiorcrgefiuaroallsfltaunioroityrerns ISBN92-5-104960-2 AwiappiIblinurennyltfftforhoeoohvmor-rroiirummmmridsataagaieshtittzditiliiewosooodnnttnnnothrsolwDcepphiieosrrvotnspeooihuoyrsddolurviupuudoreicetcndcgtrtb,.ehmeatiFffn@siaooAyRsfrsrdOeaidf,poopeurrr.nlndeeVolouossyidrcaraosugalflaecetewcdtirktiodiohtnenotroeloantllweteonlchtaoeTeohpndpreeCyedgrrhrreoimimdetgcedif.hhois.etdmssriRmsPieeeuhConopbmarnolrlircndainoifec-sadarrahctulsolioic.lmnomtagnpmi,AuteoMphrrn0aopepc0flnoio1iacsfac0omegla0apsmettyaimRerptoreiiouensigrnrmsahipteltapo.flrsSoohreiehIionntisnla/bsldiiyuttacethhcerreoii.hesdrss ©FAO2003 Copyrightedmaterial PREPARATIONOFTHISDOCUMENT Thisdeskreviewofrelevantaspectsofanecosystemapproachtofisheries(EAF)wasspecifically preparedtofacilitatetheworkoftheFAOTechnicalConsultationontheEcosystem-based FisheriesManagementheldinReykjavik(Iceland)from16to19September2002. Itwas intendedtobeusedasbackgroundmaterialandsourceofdefinitionsandreferencesfortheEAF guidelinestobeelaboratedatthemeeting.Amuchshorterversionwaspresentedatthe SymposiumonMarineFisheries,Ecosystems,andSocietiesinWestAfrica: HalfaCenturyof Change,heldinDakar(Senegal)from26to28June2002.Thedraftreceivedcommentsand additional inputs during and after the meeting from many participants, particularly DrsD.StaplesandK.Cochrane. Distribution: AllFAOMembersandAssociateMembers InterestedNationsandInternationalOrganizations FAOFisheriesDepartment FAOFisheryOfficersinFAORegionalOffices InterestedNon-governmentalOrganizations Copyrightedmaterial Abstract Garcia,S.M.;Zerbi,A.;Atiaume,C.;DoChi,T.;Lasserre,G. Theecosystemapproachtofisheries.Issues,terminology,principles,institutional foundations,implementationandoutlook. FAOFisheriesTechnicalPaper.No.443.Rome,FAO.2003.71p. Ecosystemsarecomplexanddynamicnaturalunitsthatproducegoodsandservices beyondthoseofbenefittofisheries.Becausefisherieshaveadirectimpactonthe ecosystem,whichisalsoimpactedbyotherhumanactivities,theyneedtobemanagedin anecosystemcontext.Themeaningoftheterms'ecosystemmanagement”,'ecosystem- basedmanagement",'ecosystemapproachtofisheries’(EAF),etc.,arestillnotuniversally definedandprogressivelyevolving.ThejustificationofEAFisevidentinthecharacteristics ofanexploitedecosystemandtheimpactsresultingfromfisheriesandotheractivities.The richsetofinternationalagreementsofrelevancetoEAFcontainsalargenumberof principlesandconceptualobjectives. Both provideafundamentalguidanceanda significant challenge for the implementation of EAF. The available international instrumentsalsoprovidetheinstitutionalfoundationsforEAF.TheFAOCodeofConduct forResponsibleFisheriesisparticularlyimportantinthisrespectandcontainsprovisions forpracticallyallaspectsoftheapproach.OnemajordifficultyindefiningEAFlies preciselyinturningtheavailableconceptsandprinciplesintooperationalobjectivesfrom whichanEAFmanagementplanwouldmoreeasilybedeveloped.Thepaperdiscusses thesetogetherwiththetypesofactionneededtoachievethem.ExperienceinEAF implementationisstilllimitedbutsomeissuesarealreadyapparent,e.g.inadded complexity,insufficientcapacity,slowimplementation,needforapragmaticapproach, etc.Itisargued,inconclusion,thatthefutureofEAFandfisheriesdependsonthewayin which the two fundamental concepts of fisheries management and ecosystem management,andtheirrespectivestakeholders,willjoineffortsorcollide. Copyrightedmaterial -V- Contents Page INTRODUCTION J 1. T1.E1RMIFiNshOerLieOsGMYanAaNgeDmePnAtRADIGMS 3i 1.2 EcosystemManagement 4 1.3 EcosystemApproach 5 1.4 Ecosystem-basedFisheriesManagementiEBFMt 6 1.5 EcosystemApproachtoFisheries(EAF) 6 1.6 IntegratedManagement(IM) 7 i ECOSYSTEMCHARACTERISTICS Z 2J Definition 1 U. ScaleandBoundaries Z 2.3 DynamicsandNaturalVariability 8 2.4 BiologicalOrganization 8 2.5 Structure 2 3, 3F.I1SHEORvIeErSalIlMIPmpAaCctTsONTHEECOSYSTEM K2) 33..23 IImmppaaccttoonnAthsesoEcnivaitredonamnedntDependentSpecies 1]_J0 33..54 GPoeoarrSLeolsesctaivnidtyG,hBoysctatFcihshainngdDiscards 11__22 4. FISHERIESVERSUSOTHERIMPACTS 12 4.1 OverallImpacts 1_2 4.2 RelativeImportanceofFisheriesandOtherImpacts 13 4.3 TheBlackSeaExample 13 4.4 ImpactonDiadromousFish V4 4.5 CompetitionBetweenHumansandMarineMammals 1_4 4.6 AllocationImplications Cl 5. INSTITUTIONALFOUNDATIONS 15 6. RELEVANCEOFTHECODEOFCONDUCT 12 666..21T. ARBiecoscdpoieuvcnetrtsfiootfryttahhenedEEncFvonisdryaosnntgmepemrnptdSopcies 211_029 6.4 SpeciesInterdependence 20 6.5 GeneralImpactfromFisheries 20 6.6 Selectivity,GhostFishing.Bvcalch,DiscardsandWaste 20 6.7 ImpactfromOtherActivities 20 6.8 ImprovedGovernance 21 Copyrightedmaterial 66..910 IUnntceegrrtaatiendtyM,aRniasgkeamnedntPrecaution Page2211 7. EAFPRINCIPLES 21 7.1 HumanandEcosystemWell-being 22 7.2 ResourceScarcity 22 7.3 MaximumAcceptableFishingLevel 22 7.4 MaximumBiologicalProductivity 23 7.5 ImpactReversibility 23 7.6 ImpactMinimization 23 7.7 RebuildingofResources 23 7.8 EcosystemIntegrity 23 7.9 SpeciesInterdependence 24 7.10 InstitutionalIntegration 24 7.11 Llncertaintv.RiskandPrecaution 24 7.12 CompatibilityofManagementMeasures 24 7.13 ThePolluterPaysPrinciple(PPP) 25 7.14 TheUserPaysPrinciple(UPP) 25 7.15 ThePrecautionaryPrincipleandPrecautionaryApproach 25 7.16 Subsidiarity,DecentralizationandParticipation 25 7.17 Equity 26 8. OPERATIONALOBJECTIVESANDMEASURES 26 8.1 Targets,Constraints,IndicatorsandReferencePoints 27 8.2 PrioritySetting 28 8.3 ImprovingConventionalManagement 28 8.4 ImprovingEcosystemWell-being 29 8.5 RebuildingEcosystems 30 8.6 MaintainingReproductiveCapacityofTargetResources 31 8.7 MaintainingBiologicalDiversity 32 8.8 ProtectingandEnhancingHabitats 32 8.9 ProtectingSelectedMarineAreas 35 8.10 ReducingBvcatchandDiscards 26 8.11 ReducingGhostFishing 36 8.12 ReducingUncertaintyandRisk 36 8.13 ImprovingtheInstitutionalSet-up 37 8.14 MatchinglurisdictionalandEAFBoundaries 38 8.15 ImprovingtheDecision-makingFramework 39 8.16 ImprovingStatisticsandInventories 40 8.17 MonitoringandIndicators 41 8.18 ImprovingResearchCapacity 42 8.19 ManagementPlanning 43 8.20 Certification 44 9. IMPLEMENTATIONISSUES 44 9.1 EAF:HurdleorOpportunity? 44 9.2 RhetoricVersusCommitment 45 9.3 Capacity,PragmatismandStepwiseImplementation 45 9.4 TheNeedforSubsectoralApproaches 46 RoleofNGOs 46 DISCUSSION:FUSIONORCOLLISION? 42 Copyrightedmaterial BIBLIOGRAPHY Page50 AAnnnneexx21::MKaelyaEwvienPtrsinicniptlheesEfvoorltuhteioEncoofsyFsitsheemriAepsparnodacEhcosystemManagement 5619 Annex3:Glossary 65 Copyrightedmaterial INTRODUCTION Anyanalysisofthestateoffisheriesandtheirresourcesneedstobeundertakeninitsbroader aquaticcontext.Inthatrespect,mostaquaticenvironmentsindicatealackofstewardship,illustrated bygrowingdegradation,lossofhabitat,lackofcoherenceinaquaticsciencepolicy,inadequate management-orientedresearch,poororinexistentlong-termmonitoring,lackofstrategic,integrated planningofconflictinguses,etc.Therelativefailureofconventionalfisheriesmanagementhasbeen abundantlydescribed(Garcia,1992;Garcia,1996a;GarciaandGrainger,1997;Sulinenand Soboil,2003,andmanyothers). Therealizationoftheneedtoexertsomeformofcontrolovermultipleusesofaseaareaemerged duringthelatetwentiethcenturyasaresultofconcernsoverthehealthoftheoceans,theregulation ofhumanactivities,theallocationofspace,resources,rightsandresponsibilities,andthegrowing occurrenceofrelatedconflicts.Intheprocess,thedivisionofresourcesamongnations(throughthe establishmentofsovereignrights)seemstohavebeengivenpriorityovertheissueoftheir conservationforfuturegenerations.Theprocesswasacceleratedbythetechnologicalboominthe n1a9v5a0ls,acwchiidecnhtsi.ncTrheiasseisdidlrluasmtartaitcedalblyytthheewoiolrlspdillfsisohfintghepoTwOeRrRaEnYdCthAeNrYisOkNof(c1o9n67t)amainndatiAoMnOfCroOm CADIZ(1978),aswellasbyfishstockscollapsessuchastheIndiansardinella(inthe1940s), Japanesesardine(inthe1940sand1950s),SouthAfricanpilchard(1965-66),Atlanticherring(1968- 69),Greenlandcod(1968),GeorgesBankhaddock(1968),Namibianpilchard(1970-71),Peruvian anchoveta(1972-73),GulfofGuineasardinella(1973-74)andCanadianAtlanticcod(inthe1990s). Theeffecthasbeenanincreasingsocietalconcernaboutthesustainabilityoffisheriesandtheir environmentduringthelastfivedecades.Inordertoimprovethesector'simageandsustainability, fisheriesgovernanceisrequiredtobecomemoreeffectiveandriskadverse,takingaccountofthe ecosystem'slimitsaswellasbeingresponsivetoenvironmentalchangesandconservativeof ecosystemcomponents.Fisheriesdevelopmentplanningwillneedtobemoreintegratedwiththe planningandmanagementoftheothersectorssharingaquaticspaceandresources.Institutionsin chargerespectivelyoffisheriesandenvironmentalmanagementneedtocollaboratemoreeffectively andimprovesubstantiallytheireffectiveness,bettersustainedbyincreasednationalcommitments. Implicitlyorexplicitly,mostoftherecentlyadoptedinstrumentsofrelevancetofisheriescallforan approachtofisheriesgivingmoreattentiontotheecosystem.Whenconsideringtheimplicationsof suchanapproach,fishingandcoastalnationswillneedtoensurethatthecontentoftheapproachis inlinewithalreadyagreedinstruments(whetherbindingornot),complieswiththesovereignrights ofcoastalStatesanddoesnotimplyobligationsordutiesbeyondthosealreadycommittedto.Most oftheprinciplesandconceptualelementsofanEcosystemApproachtoFisheries(EAF)arealready containedinanumberofbindingorvoluntaryarrangements,agreements,conventions(globalor r1e9g8io2naUl)N,cCoodnevse,ntetico.,noofnditrheectLoarwionfditrheectSreeale(vhaenrecaeftteorfciaslhlereidest.heTh1e9s8e2inCsotnrvuemnetnitosn)sptaontfhreom19t9h5e FAOCodeofConductforResponsibleFisheries(hereaftercalledtheCode)anditsInternational PlansofAction(IPOAs),andfromthe1971 RamsarConventiontothe1992Conventionon BiologicalDiversity(CBD),includingthe1995JakartaMandateonMarineandCoastalBiological Diversity. Morerecently,theFAO-lcelandConferenceonResponsibleFisheriesintheMarineEcosystem, Reykjavik,October2001 (Sinclairela!.,2003)broughttheissuetotheforefrontoffisheries requestingFAOtodevelopguidelines. Finally,theWorldSummitonSustainableDevelopment (WSSD,Johannesburg,September2002)“encouragetd)theapplicationby2010oftheecosystem Copyrightedmaterial : -2- approach,notingtheReykjavikDeclarationonResponsibleFisheriesintheMarineEcosystemand DecisionV/6oltheConventiononBiologicalDiversity''. TheCodeoffersasynthesisoftherequirementsofalltheaboveinstrumentsandprovidesthe conceptualbasisandinstitutionalrequirementfor,interalia,ecosystemandhabitatprotection; accountingforenvironmentalfactorsandnaturalvariability;reducingimpactsoffishingandother activities;biodiversityconservation;multispeciesmanagement;protectionofendangeredspecies; accounting for relations between populations; reducing land-based impacts and pollution; integrationincoastalareamanagement:eliminationofghost-fishing;reductionofwasteand discards;precautionaryapproach;delimitationofecosystemboundariesandjurisdictions,aswellas adaptedinstitutionsandgovernance. Implementationremainsthe"acidtest'ofanyapproachtomanagement. EAFimplementation faces,andneedstoresolve,anumberofdifficulties,manyofwhicharealreadyhamperingthe effectivenessofmoreconventionalfisheriesmanagement.Thesedifficultiesrelateto,interalialack of information, lack of scientific assessment, non-matching ofecosystem and jurisdiction boundaries,appreciationoftheroleofprotectedareas,unclearorconflictingobjectives,lackof consensusaboutecolabelling,insufficientcollaborationbetweeninstitutionsinchargeoffisheries andenvironmentalmanagementatnationalorregionallevels,lackofintegrationoffisheriesin coastalareasmanagement,needformoretransparencyandparticipation,lackofcapacityfor decentralization,redefinition(andstrengthening)oftheroleofscience,relationsbetweentradeand theenvironment(andtheroleoftheWorldTradeOrganization),and,lastbutnotleast,the potentiallylargesocio-economicandpoliticalcostsoftransition. Thisdocumentreviewsbriefly: theevolutionofterminologyandunderlyingparadigms;some selectedecosystemcharacteristics;theimpactoffisheriesandofotheractivitieswithwhichfisheries compete;theinstitutionalfoundationsoftheapproachwiththeparticularroleplayedbytheCode; theconceptualobjectivesandprinciplesofrelevanceforEAF;selectedoperationalobjectivesand relatedmeasuresandactions,andselectedimplementationissues.Inconclusion,wediscussthe likelyevolutionoftheapproachandthepotential"fusion"or'collision'betweentheparadigms andoverlappinggroupsoffisheriesandecosystemmanagementstakeholders. Acknowledgements Theauthorswishtoexpresstheirgratefulthankstothemanycolleagueswhomadecommentsand gavesuggestionsontheearlydraftofthisdocumentduringandaftertheFAOExpertConsultation on Ecosystem-based FisheriesManagement, Reykjavik, Iceland, 16-19September2002, and particularlytoDrsK.L.CochraneandD.Staples. ThanksarealsoduetoMsEmanuelaD'Antoniforthephotomontageonthecover,madeonthe basisofmaterialavailableintheFAOMediaBaseandFishBaseBestPhotos(by).E.Randalland jjPhoto). 1 Paragraph29dofthePlanofImplementationfortheWorldSummitonSustainableDevelopment. Copyrightedmaterial
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