Download Common sense in fisheries management: the ecosystem

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.