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ICES CM 2015/B:20 Common sense in fisheries management: the ecosystem approach to fisheries Gabriella Bianchi , Kwame Koranteng , Jessica Sanders Food and Agriculture Organization of the United Nations, Rome, Italy. Presenter contact details: [email protected], Phone +39 0657053094. Summary The Ecosystem Approach has been defined and utilized in a large variant of ways across regions, countries and global organizations. The ecosystem approach to fisheries (EAF) as utilized by FAO and partners is fundamentally different from other “ecosystem”- based approaches to fisheries management where the main focus is on addressing ecological issues, often with limited or no concern for social and economic implications, of which the understanding and incorporation into management is fundamental to achieve sustainability objectives. In essence, EAF as promoted by FAO is managing fisheries (the entire system) through a holistic management approach, giving equal attention to the different dimensions of sustainable development. The EAF highlights and addresses fisheries sustainability issues by thoroughly assessing these, and proposing solutions that take cognizance of good practices in fisheries and ocean governance but applies these in a context-specific manner. The ecosystem approach within sectors, such as EAF, is an essential piece of the governance structure. Overarching cross-sectoral governance frameworks require strong sectoral management through ecosystem approaches. The conceptual governance model within which EAF takes place sees the need for strong sectoral management (not only of fisheries but also of other sectors impacting the marine environment), and coordination and integration across sectors operating in a given region. This contribution will review concepts and main features of the ecosystem approach to fisheries (EAF) embedded within broader ecosystem approaches to management, as developed and promoted by FAO, provide examples of progress made with EAF implementation at national and regional levels, consider challenges and opportunities, and provide suggestions on the way forward. Introduction During the past decade or so holistic approaches to natural resources management have increasingly been promoted. In the context of aquatic resources, concepts such as the “ecosystem approach to fisheries” or “ecosystem-based fisheries management (EBFM)” have often been used in policy statements by environmental, conservation and fisheries agencies, both governmental and nongovernmental, and at the national and international levels. Following a period where skepticism has prevailed on the applicability and overall merits of these approaches, pragmatic methodologies have emerged and good progress has been made at national and regional levels. However, approaches and understanding can still be rather different across stakeholders, including scientists and managers, national, regional and international institutions, warranting continued efforts for their harmonization. It is important that key internationally-agreed policy documents and instruments are taken into account when developing frameworks for ecosystem-based management at national or regional scales. The main principles of the EAF are well described in a number of guidelines and technical documents produced by FAO (e.g. FAO, 2003 and 2012), including on aspects that deal directly with the human dimensions of EAF (e.g. FAO, 2009). The EAF incorporates the principles of sustainable development as reflected in UN Conference on Environment and Development, the CBD and the Code of Conduct for Responsible Fisheries (CCRF) (FAO, 1995). A(n) (eco) system approach to fisheries management Following requests by its member countries, and based on the guidelines approved by its Committee on Fisheries (COFI) in 2003 (FAO, 2003), FAO has been furthering the Ecosystem Approach to Fisheries (EAF) in a number of countries and regions. The principles found in these instruments require that all impacts of fisheries on marine ecosystems should be assessed and managed while taking into consideration the social, economic and governance aspects. This entails the adoption of a true “systemic” approach to fisheries management that considers fisheries as socio-ecological systems. FAO’s approach is based on the notion that EAF should result from an evolutionary process starting from existing fisheries management practices. However, as a starting point, it is recommended that a thorough and integrated assessment is carried out across the three dimensions of sustainability, i.e. the ecological, social and economic, for any given fishing activity. The assessment also considers governance issues (regulatory, institutional, etc.) and identifies external drivers that cannot be controlled by the fishery sector itself (e.g. impacts from other activities or climate change). This process also allows for identification of context specific solution to the problems identified, which has a higher probably of success as compared to directly adopting solutions that may have been successful in a given context but may prove to be less useful when implemented in a different environment. The EAF also encourages fishery managers to make greater use of informal knowledge as the basis for decision making, either to complement or in place of scientific knowledge when this is not readily available. The legitimacy of scientific or informal (e.g. traditional) knowledge can only be strengthened through stakeholder consultations, another aspect emphasized by the EAF. Pragmatic approaches have been developed that support this integration across the dimensions of sustainability. Furthermore, emphasis is put on setting up “good governance” systems, including setting relevant and legitimate policy objectives, strengthening institutional and legal frameworks, and establishing practices that are participatory, accountable, equitable and transparent. Two levels of governance have been identified that need to be addressed. One is sectoral, that focuses on sustainability in a given sector (e.g. fisheries), and one multi-sectoral, focusing on the interactions between sectors and their compounded impacts at ecosystem level. Experiences made FAO has been helping member countries and regions (through RFBs and LMEs) in improving fisheries management practices following the EAF for the past ten years. A fishery management plan has been promoted as the necessary interface between policy objectives and activities of the fishers. To this end, FAO has assisted a number of countries to elaborate and implement EAF management plans, including the establishment of a fishery management cycle, i.e. a recurring process of collection of information, assessment, decision and change of course as required. Experience shows that although the approach is often still perceived as too complex to be implementable, it is understood by the fisheries managers and stakeholders once put into practice. The most critical problems encountered are typically insufficient management and scientific capacity, the need to engage stakeholders more effectively, and conflicts between the long term goals of sustainability and short-term social and economic needs. Conclusions The ecosystem approach to fisheries provides a practical framework for sustainable fisheries not only in ecological but also in social and economic terms. The EAF works best within a broader ocean governance framework where other sectors follow similar approaches and coordinate through crosssectoral arrangements. References FAO (1995) Code of Conduct for Responsible Fisheries. Rome, FAO. 1995. 41 p. FAO. 2003. Fisheries management 2. The ecosystem approach to fisheries. FAO Technical Guidelines for Responsible Fisheries No. 4, Suppl. 2. Rome, FAO. 112p. FAO. 2009. Fisheries management. 2. The ecosystem approach to fisheries. 2.2 Human dimensions of the ecosystem approach to fisheries. FAO Technical Guidelines for Responsible Fisheries. No. 4, Suppl. 2, Add. 2. Rome, FAO. 88p. FAO, 2012. EAF Toolbox: The ecosystem Approach to Fisheries. Rome, 172 pp. http://www.fao.org/fishery/eaf-net/topic/166272/en Fletcher, W. J. (2008) Implementing an Ecosystem Approach to Fisheries Management: lessons learned from applying a practical EAFM framework in Australia and the Pacific. pp 112-124. In: Bianchi, G. and Skjoldal, H.R. (Eds.) The Ecosystem Approach to Fisheries. FAO-CABI, Rome, 363 p.