The Fisheries Co-management Experience: Accomplishments, Challenges and Prospects

323 Pages·2003·15.21 MB·English

by  Svein Jentoft (auth.)

The Fisheries Co-management Experience
Fish and Fisheries Series
VOLUME 26
The Kluwer Fish and Fisheries Series begins with the new millennium. The volumes in this
series will cover topics ranging from the biology of individual species or groups of fishes, to
broader concepts in fisheries science, conservation and management. The Series is directed to
professionals and researchers in fish biology, senior undergraduate and postgraduate students,
and those concerned with commercial production or harvest of fishes.
It is difficult to know if this is the best of times or the worst of times for fish and fisheries. For
example, many of the historically important marine fisheries are at or very near harvest capacity,
according to the best scientific data and predictions. Many of the changes in commercial
harvests fit a predictable, depressing pattern. We tend to produce simplified communities,
harvested by ever more efficient technology, at increasing rates of exploitation. Some would
suggest that nothing can stop the apparently inevitable destruction of all commercially
harvested fishes. Fish habitats seem to be increasingly degraded, and the deliberate or accidental
introductions of exotic species threaten endemic native fishes. We always do things to the limit
of our technology.
However, in contrast, we can point to a number of very favourable examples of current success
and future promise in fish and fisheries. Our knowledge of the basic biology of fishes continues
to expand. We disseminate that knowledge with ever increasing speed to libraries and personal
computers around the world. Many fishes are increasingly recognized as fundamentally
important subjects for basic research. Studies of the zebrafish, Brachydanio rerio, have
produced a veritable explosion of fundamental scientific information at major research
institutions around the world. Fishes as diverse as arctic charr, Salve linus alpinus, and
stickleback, Gasterosteus aculeatus, are providing insights and new understanding of the
fundamental processes of natural selection and speciation. Science and technology give us a
better understanding of the implications of long term climate change for fish populations. We
continue to see fundamental breakthroughs in our understanding of development, genetics and
evolution of fishes on almost a daily basis. Production of fishes through our increasingly
sophisticated and efficient aquaculture rivals or exceeds the harvest of wild fishes in many
places. Our knowledge and understanding continue to develop to the limits of our science and
technology.
Science and the promise it holds for us to deal with our questions and concerns about fish and
fisheries, is the basis for this Series. The future is certainly not what it used to be. This and
forthcoming volumes in the Kluwer Fish and Fisheries Series will define the scientific basis for
our future interactions with fishes. It is truly an exciting time.
Dr. David L. G. Noakes
Series Editor, Fish and Fisheries Series
Professor of Zoology, University of Guelph
Guelph, Canada
The Fisheries
Co-management Experience
Accomplishments, Challenges and Prospects
Edited by
Douglas Clyde Wilson
Jesper Raakjaer Nielsen
and
Poul Degnbol
The Institute for Fisheries Management
and Coastal Community Development,
Hirtshals, Denmark
SPRINGER-SCIENCE+BUSINESS MEDIA, B.V.
A C.I.P. Catalogue record for this book is available from the Library of Congress.
ISBN 978-90-481-6344-1 ISBN 978-94-017-3323-6 (eBook)
DOI 10.1007/978-94-017-3323-6
Printed an acid-free paper
Ali Rights Reserved
© 2003 Springer Science+Business Media Dordrecht
Originally published by Kluwer Academic Publishers in 2003
N o part of this work may be reproduced, stored in a retrieval system, or transmitted
in any form or by any means, electronic, mechanical, photocopying, microfilming, recording
or otherwise, without written permission from the Publisher, with the exception
of any material supplied specifically for the purpose of being entered
and executed on a computer system, for exclusive use by the purchaser of the work.
Table of Contents
Series Editor's Preface xiii
Contributors xv
Preface xxi
Introduction
Co-management -the way forward 1
Svein Jentoft
1. Introduction "............................................... 1
2. Co-management defined ....................................... 3
3. Subsidiarity ................................................. 4
4. Conflict and power ............................................ 5
5. Property-rights ............................................... 6
6. Representation and knowledge. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8
7. The community .............................................. 9
8. The way forward? ........................................... 10
9. Book outline . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 11
References ................................................... 13
Section One The fisheries co-management idea 15
1 The community development tradition and fisheries co-management 17
Douglas Clyde Wilson
1. Introduction .. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 17
2. Basic community development concepts . . . . . . . . . . . . . . . . . . . . . . . . .. 17
3. Early experiences with community development .................... 20
4. Participatory community development as a critical perspective ......... 22
5. New approaches to participatory community development ............ 24
6. New approaches for fisheries development ........................ 26
7. Lessons for fisheries co-management ............................. 28
References ................................................... 29
2 Science and the user perspective: The gap co-management must address 31
Poul Degnbol
1. Knowledge in fisheries management ............................. 31
2. The scale of observation and the intemationalisation of fisheries
management ............................................... 34
3. Optimality and the deterministic predictability discourse ............. 36
4. Precautionarity and stochastic predictability ....................... 39
5. Limits to intemalisation -the end of short-term prognoses? ........... 42
6. The limits to knowledge and the emergence of indicator based discourses 45
7. Indicator development responding to globalisation or cost minimisation. 45
8. Indicators as means to acceptance ............................... 46
9. Conclusions ................................................ 47
Acknowledgements ............................................ 48
viii Table o/Contents
References ................................................... 48
3 The economics of co-management 51
Susan Hanna
1. Introduction ............. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 51
2. The economic basis of fishery co-management ..................... 51
3. Economics of fishery co-management in practice ................... 55
4. Conclusion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 59
Acknowledgements ............................................ 59
References ................................................... 60
4 Toward specificity in complexity: Understanding co-management from a social
science perspective 61
Evelyn Pinkerton
1. Revitalizing an overused term .................................. 61
2. Defining parameters with a fully-developed case . . . . . . . . . . . . . . . . . . . . 61
3. Back to the origin of the term: a higher-level collective choice right .... 62
4. What other rights and activities have to be involved? ................ 63
5. Vertical and horizontal governance broadens the co-managers' roles .... 64
6. Key aspects of complete co-management ......................... 64
7. Conclusion ................................................. 74
References ................................................... 76
Section Two Experiences with fisheries co-management 79
5 Experiences with fisheries co-management in Africa 81
Ma/aniso Hara and Jesper Raalgcer Nielsen
1. Introduction ................................................ 81
2. Reasons for adopting co-management ....... . . . . . . . . . . . . . . . . . . . . . 82
3. Objectives for co-management .................................. 84
4. What passes for co-management in Africa? ........................ 85
5. How has co-management been implemented? ...................... 86
6. Lessons from the African experience . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 87
7. The challenge for the future of fisheries co-management in Africa ...... 92
8. Lessons learned ............................................. 94
References ................................................... 95
6 Experiences with fisheries co-management in Southeast Asia and Bangladesh 99
Robert S. Pomeroy and K. Kuperan Viswanathan
1. Introduction ................................................ 99
2. What is co-management in the context of Southeast Asia? ........... 10 1
3. Current approaches to community-based resource management
and co-management of coastal fisheries in southeast asia . . . . . . . . . . .. 102
4. An example of co-management in the philippines . . . . . . . . . . . . . . . . .. 113
5. Conclusions ............................................... 115
References .................................................. 115
Table ofC ontents IX
7 Experiences with fisheries co-management in Europe 119
David Symes, Nathalie Steins and Juan-Luis Alegret
1. Introduction: The geo-political complexities of European fisheries
management .............................................. 119
2. Non-participatory governance: the common fisheries policy .......... 120
3. Co-management experiences in Europe .......................... 123
4. Policy reform: Towards improved governance .................... 130
Acknowledgements ........................................... 132
References .................................................. 132
8 Experiences with fisheries co-management in Latin America and the Caribbean 135
Alpina Begossi and David Brown
1. Introduction ............................................... 135
2. Background ............................................... 135
3. Latin American and Caribbean experiences with co-management ..... 138
4. Lessons from Latin American and Caribbean co-management
experiences ............................................... 144
5. Future prospects ............................................ 149
Acknowledgements ........................................... 150
References .................................................. 150
9 Experiences with fisheries co-management in North America 153
Laura Loucks, James A. Wilson and Jay J. C. Ginter
1. Introduction ............................................... 153
2. Origins, contexts and meanings of co-management in North America .. 154
3. Some current examples of co-management approaches in North America 157
4. Conclusions ............................................... 166
References .................................................. 169
10 Experiences with fisheries co-management in Australia and New Zealand
Rebecca Metzner, Michael Harte and Duncan Leadbitter
1. The continental region . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 171
2. Fisheries management in the region . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 172
3. So-called fisheries 'co-management' ............................ 174
4. Positive models of fisheries co-management . . . . . . . . . . . . . . . . . . . . .. 179
5. Negative models/examples of fisheries co-management ............. 181
6. The prospects for fisheries 'co-management' ..................... 184
7. Policy recommendations ..................................... 187
References .................................................. 188
Section Three Multiple stakeholders in fisheries co-management 191
11 Conflict and scale: A defence ofc ommunity approaches in fisheries management 193
Douglas Clyde Wilson
1. Some current criticisms of the community approach . . . . . . . . . . . . . . .. 193
2. The properties of institutions .. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 195
3. Scale and motivations for participating in co-management ........... 201
4. Co-management and the social construction of the resource .......... 205
x Table o/Contents
5. Interactions between scales ................................... 206
6. Conclusion ................................................ 208
References .................................................. 209
12 Co-management and marine reserves in fishery management 213
Caroline Pomeroy
1. Introduction ............................................... 213
2. Marine reserves as an alternative to traditional fishery management ... 214
3. The intersection between co-management and marine reserves ........ 216
4. Case studies of co-management and marine reserves ................ 217
5. Possibilities for the future role of co-management in marine
reserve processes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 225
Acknowledgements ........................................... 227
References .................................................. 227
13 Co-management and recreational fishing 231
Riku Varjopuro and Pekka Salmi
1. Introduction ............................................... 231
2. Recreational fishing ......................................... 232
3. Fisheries co-management ..................................... 233
4. Recreational fisheries management in the Finnish archipelago sea ..... 235
5. Archipelago sea recreational fishing and co-management ............ 239
6. Recreational fishing systems in other contexts . . . . . . . . . . . . . . . . . . . . . 240
7. Co-management of recreational fishing .......................... 242
References .................................................. 243
14 The government as a partner in co-management 247
Robert S. Pomeroy
1. Introduction ............................................... 247
2. The establishment of conditions for co-management ................ 247
3. Decentralization and co-management ........................... 251
4. A case study of devolution in the Philippines ..................... 253
5. The government and co-management ............................ 256
Acknowledgements ........................................... 259
References .................................................. 259
Section Four Edge issues in fisheries co-management 263
15 Fisheries co-management and the knowledge base for management decisions 265
Douglas Clyde Wilson
1. Introduction .. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 265
2. The social construction of fisheries knowledge .......... . . . . . . . . . . 266
3. Tacit and discursive knowledge ................................ 267
4. Research based knowledge and fisheries co-management ............ 270
5. Local ecological knowledge .................................. 272
6. Conclusion: Cooperative approaches to science for co-management ... 275
References .................................................. 276
Table ofC ontents
Xl
16 Representation in fisheries co-management 281
Svein Jentojt, Knut H Mikalsen and Hans-Kristian Hernes
1. Introduction ............................................... 281
2. Who should be represented? .................................. 282
3. Representation -as what? ..................................... 284
4. Representation or participation? ............................... 285
5. How to represent? .......................................... 288
6. Conclusion ................................................ 290
References .................................................. 291
17 The place of civil society in fisheries management: A research agenda
for fisheries co-management 293
Svein Jentojt and Bonnie J. McCay
1. Introduction ............................................... 293
2. The neo-liberal paradigm ..................................... 294
3. Interlude: market failure or community failure? ................... 297
4. The communitarian paradigm ................................. 298
5. Research agenda ............................................ 301
6. Conclusion ................................................ 304
References .................................................. 305
Conclusion
The future of fisheries co-management 309
1. Introduction ............................................... 309
2. The nature of change ........................................ 309
3. The sources of change ....................................... 310
4. Co-management in the context of change ........................ 311
5. Sustaining co-management .................................... 317
Acknowledgements ........................................... 319
References .................................................. 319
Index 321
Co-management: bringing it together
This is a time of uncertainty and change for fisheries management; the only thing certain is
uncertainty. It is a time of unprecedented change, of shifts in concepts and priorities. The
global climate is changing, perhaps as a decadal shift. Native species are becoming
endangered at what appear to be unprecedented rates. Exotic species are invading with
potentially catastrophic consequences for individual native species and communities. Harvests
of wild fish stocks are declining. The demands on fisheries and aquatic sciences are ever
increasing, from an ever-increasing number of individuals, organizations, agencies and
nations. Fresh water itself is increasingly seen as a major resource and is the basis for
conflicting management demands. Aquaculture is the fastest growing sector of captive animal
production, but is perceived by some as yet another conflicting demand on water and fisheries
production.
In this context, this volume is notable and timely for a number of reasons. The authors are
remarkably diverse in their interests, their experiences and their geographic locations. They
range from graduate students to senior scientists, from anthropologists to ecologists. Their
experiences, and their chapters, include examples of fisheries management from around the
globe.
This volume is forward looking. It not only looks towards the future, it also presents a view of
that future and a blueprint for the future. It offers new insights for conflict resolution. It is
unusual within the field of fisheries in that it combines theory and reality. It includes, and is
directed towards, both academics and those responsible for management.
This volume is particularly timely for anyone concerned with research or management of
fishes. I am located in the midst of a very large freshwater system, the Laurentian Great Lakes.
My interactions with fish and fisheries in the Great Lakes include First Nations (with
aboriginal treaty rights), federal government ministries and agencies in both Canada and the
u. S. A., provincial ministries and state departments with responsibilities for fisheries
management in both countries, the Great Lakes Fishery Commission (an agency formed by
treaty between Canada and the U. S. A.), various groups with interests in recreational fishing,
private corporations licensed to operate nuclear and hydroelectric generating stations, groups
representing the interests of commercial fishing other than aboriginal treaties, groups with
interests in commercial aquaculture production, several organizations with interests in
conservation and restoration of endangered species, among others.
Each of these entities has its particular interests, priorities and objectives. All operate within a
maze of federal, provincial and international legislation, agreements and treaties. History,
economics, politics and biology are obvious concerns of most of these parties, but there is
often strong disagreement as to the importance of these disciplines and the necessity for
including other disciplines. Some parties claim special jurisdiction or regulatory
responsibilities. Some have strongly contradictory demands and priorities. Many feel that they
have a right, or responsibility, to be involved in fisheries management or co-management.
The history of fisheries management in the Laurentian Great Lakes is well documented. The
invasion of parasitic sea lamprey, Petromyzon marinus, into the upper Great Lakes is a classic
textbook example. The sequential impacts of invading species, changing land use practices,
urbanization and industrialization, and conflicting demands of growing human populations
have all been clearly documented in the Great Lakes over the past 500 years. At various times