Transcript Fisheries Management Systems - United Nations University

Fisheries Management Systems:
Objectives and Performance
A Guest Lecture Prepared for the
United Nations University Fisheries Training Program
Reykjavik, Iceland
Gunnar Knapp
Professor of Economics
Institute of Social and Economic Research
Anchorage, Alaska USA
[email protected]
January 2013
One of the major inherent challenges of fisheries management is multiple and
often conflicting objectives.
What do YOU PERSONALLY consider to be the most important objectives of
fisheries management?
• (to get reelected)—do do things the public approves of . . . (short
time horizon)
• Create jobs; maintain employment
• Sustain the fishery
• Wealth generation
• Feed the population
• Maximum economic benefit
• Environmental/
• Effiiency
Here are some fishery management objectives which I consider
important, and which other people also describe as important
Objective
Questions we could ask to evaluate performance
Resource
protection
How well does the system protect fish resources and the
environment? How effective is it at preventing overfishing? How
well does it promote sustainability of fish and other resources for
current and future generations?
Economic
efficiency
How well does the system promote economic efficiency in the
utilization of fish resources? How well does it keep costs low and the
value of fish products high? How successful is it at generating
economic benefits from fish resources?
Fairness
How “fair” is the management system? To what extent does it
promote communities and cultural traditions?
Simplicity
How easy is the management system to understand and to
implement? How much does it cost to administer? How effectively
can it be enforced?
How important do YOU consider resource
protection as a fisheries management objective?
96%
A. Very
important
B. Somewhat
important
C. Not very
important
t
ta
n
ta
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v
N
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0%
t
nt
4%
How important do YOU consider economic
efficiency as a fisheries management objective?
67%
A. Very
important
B. Somewhat
important
C. Not very
important
30%
ta
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ta
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v
N
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t
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4%
How important do YOU consider fairness as a
fisheries management objective?
50%
A. Very
important
B. Somewhat
important
C. Not very
important
39%
ta
n
ta
n
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v
N
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t
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11%
How important do YOU consider simplicity as a
fisheries management objective?
59%
A. Very
important
B. Somewhat
important
C. Not very
important
26%
ta
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ta
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N
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15%
MY HYPOTHESIS:
There is no “perfect” fishery management system
• No system performs “best” with respect to all objectives
• Systems that perform well with respect to some objectives may
perform poorly with respect to other objectives
Let’s find out if YOU agree with my hypothesis.
• We will describe and discuss (up to) six types of fishery
management systems.
• For each management system, I will briefly describe the system
• Then I will ask YOU to discuss how well or poorly you think the
system performs with respect to each fishery management objective
• Then I will ask YOU to use your clickers to rank the performance of
each system with respect to each management objective
• At the end of the lecture, we will review how YOU ranked the
performance of these management systems
– Do YOU think any system is “best” for all objectives?
– Do YOU think that systems that perform well with respect to
some objectives perform poorly with respect to other objectives?
Some challenges we face in our discussion . . .
• We are talking about a very big set of questions!
• You may have limited familiarity with some of these management
systems
• For any given type of management system, there is a very wide
range in the specific ways they work and how they perform
– The devil in the details
– Clearly, we are over-generalizing!
• We don’t have much time
If we really wish to seriously evaluate the performance of different kinds
of fisheries management systems, we would need to:
• Divide management systems into a greater range of types of
systems
• Systematically gather evidence about their actual performance
• This would be a major and challenging research task
So our discussion today is only a simple exercise to get you to begin to
think about different management systems and how you might evaluate
their performance.
Six broad types of fisheries management systems
I HOPE WE CAN AT LEAST DISCUSS THESE FOUR SYSTEMS
•
•
•
•
Unregulated open access
Regulated open access
Limited entry
Individual catch shares
IF WE HAVE TIME WE CAN ALSO DISCUSS THESE SYSTEMS:
• Group catch shares
• Fisheries self-governance
Please use a piece of paper to keep a record of your scores
Make a table with 5 rows and 7 columns, like this:
Your name (or alias) ________________________
1
Unregulated
open
access
2
Regulated
open
access
4
3
Individual
Limited
catch
entry
shares
5
Group
catch
shares
7
Selfgovernance
A. Resource
protection
B. Economic
efficiency
C. Fairness
D. Simplicity
If you wish you can just label the columns with the numbers and the
rows with the letters.
Unregulated
Open Access
UNREGULATED OPEN ACCESS
Questions
Answers
Who can fish?
Anyone
When, where and
how can they fish?
Any time, anywhere, any way they wish
How much can an
individual fisherman
catch?
As much as he can
What limits the total
catch?
When fishermen stop fishing—which is driven by resource
and economic conditions. Typically, they keep fishing until
it’s no longer profitable.
Real-world fishery
examples?
Notes and
comments?
UNREGULATED OPEN ACCESS
What is good or bad about this fishery management system?
Evaluation criteria
What is good or bad about this system?
Resource protection
Shaking head
Formerly like this in Iceland
Mortality
Depends on the level of technology; depends on
environment
Depends on the species
Devil is in the details!
Economic efficiency
Poor; inefficient;
Fairness
Totally fair—equal for all
Totally unfair—poverty trap
Simplicity
Very simple and easy
OTHER:
UNREGULATED OPEN ACCESS
How good or bad do YOU think this fishery management system is?
For each evaluation criterion, what score would YOU give it?
Evaluation criteria
Resource protection
Economic efficiency
Fairness
Simplicity
1 = very good
2 = somewhat good
3 = somewhat poor
4 = very poor
How would YOU rate this type of management
system with respect to resource protection?
A. Very good
B. Somewhat good
C. Somewhat poor
D. Very poor
81%
12%
or
po
Ve
ry
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oo
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ha
tg
oo
So
m
ew
ha
go
Ve
ry
Mean = 3.62
4%
r
d
od
4%
How would YOU rate this type of management
system with respect to economic efficiency?
A. Very good
B. Somewhat good
C. Somewhat poor
D. Very poor
62%
27%
po
Ve
ry
tp
oo
So
m
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ha
tg
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m
ew
ha
go
Ve
ry
Mean = 3.46
r
d
od
4%
or
8%
How would YOU rate this type of management
system with respect to fairness?
A. Very good
B. Somewhat good
C. Somewhat poor
D. Very poor
31%
27%
or
po
Ve
ry
ha
ew
So
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So
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go
tg
oo
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d
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15%
Ve
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Mean = 2.38
27%
How would YOU rate this type of management
system with respect to simplicity?
80%
or
po
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Ve
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Mean = 1.40
8%
4%
d
od
8%
Ve
ry
A. Very good
B. Somewhat good
C. Somewhat poor
D. Very poor
Regulated
Open Access
REGULATED OPEN ACCESS
Questions
Answers
Who can fish?
Anyone
When, where and
how can they fish?
Only when, where and how managers allow fishing
How much can an
individual fisherman
catch?
As much as he can, given management regulations
What limits the total
catch?
Area limits, gear limits, season limits, & other types of
restrictions. Managers may close the fishery after a Total
Allowable Effort (TAE) or Total Allowable Catch (TAC) is
reached.
Real-world fishery
examples?
Notes and
comments?
REGULATED OPEN ACCESS
What is good or bad about this fishery management system?
Evaluation criteria
Resource protection
What is good or bad about this system?
Somewhat better; some biological controls,
You can control the timing, you can protect juveniles;
“system isn’t enforceable”
Economic efficiency
Fairness
Simplicity
OTHER:
Costs higher than benefits, almost all fisheries in
developing countries, they seem not to be very good
at resource proteciton, economic efficiency, fairness,
or simplicity: a “disaster”
REGULATED OPEN ACCESS
How good or bad do YOU think this fishery management system is?
For each evaluation criterion, what score would YOU give it?
Evaluation criteria
Resource protection
Economic efficiency
Fairness
Simplicity
1 = very good
2 = somewhat good
3 = somewhat poor
4 = very poor
How would YOU rate this type of management
system with respect to resource protection?
A. Very good
B. Somewhat good
C. Somewhat poor
D. Very poor
42%
31%
19%
or
po
Ve
ry
tp
oo
So
m
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ha
tg
oo
So
m
ew
ha
go
Ve
ry
Mean = 2.27
r
d
od
8%
How would YOU rate this type of management
system with respect to economic efficiency?
A. Very good
B. Somewhat good
C. Somewhat poor
D. Very poor
55%
40%
or
Ve
ry
po
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tp
oo
So
m
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ha
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oo
So
m
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ha
go
Ve
ry
Mean = 3.30
0%
d
od
5%
How would YOU rate this type of management
system with respect to fairness?
A. Very good
B. Somewhat good
C. Somewhat poor
D. Very poor
58%
23%
15%
or
po
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tp
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tg
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So
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ha
go
Ve
ry
Mean = 2.15
r
d
od
4%
How would YOU rate this type of management
system with respect to simplicity?
A. Very good
B. Somewhat good
C. Somewhat poor
D. Very poor
42%
31%
19%
or
po
Ve
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tp
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So
m
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ha
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So
m
ew
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go
Ve
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Mean = 2.62
r
d
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8%
Limited Entry
LIMITED ENTRY
Questions
Answers
Who can fish?
Only holders of limited entry permits
When, where and
how can they fish?
Only when, where and how managers allow fishing
How much can an
individual fisherman
catch?
As much as he can, given management regulations
What limits the total
catch?
Area limits, gear limits, season limits, & other types of
restrictions. Managers may close the fishery after a Total
Allowable Effort (TAE) or Total Allowable Catch (TAC) is
reached.
Real-world fishery
examples?
Notes and
comments?
LIMITED ENTRY
What is good or bad about this fishery management system?
Evaluation criteria
What is good or bad about this system?
Resource protection
Economic efficiency
Fairness
Simplicity
OTHER:
Many countries have licensing systems; it depends
on the fishery—if it is valuable, it depends on the
value of the fishery;
Can be mixed up between sysbsistence and
commercial; may favor commercials; when you restric
entry, you are looking for those who are fishing as a
busness, you may turn away from those fishing for
subsistence
LIMITED ENTRY
How good or bad do YOU think this fishery management system is?
For each evaluation criterion, what score would YOU give it?
Evaluation criteria
Resource protection
Economic efficiency
Fairness
Simplicity
1 = very good
2 = somewhat good
3 = somewhat poor
4 = very poor
How would YOU rate this type of management
system with respect to resource protection?
A. Very good
B. Somewhat good
C. Somewhat poor
D. Very poor
65%
30%
or
po
Ve
ry
tp
oo
So
m
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ha
tg
oo
So
m
ew
ha
go
Ve
ry
Mean = 1.74
0%
r
d
od
4%
How would YOU rate this type of management
system with respect to economic efficiency?
A. Very good
B. Somewhat good
C. Somewhat poor
D. Very poor
56%
32%
or
Ve
ry
po
r
tp
oo
So
m
ew
ha
tg
oo
So
m
ew
ha
go
Ve
ry
Mean = 2.32
4%
d
od
8%
How would YOU rate this type of management
system with respect to fairness?
A. Very good
B. Somewhat good
C. Somewhat poor
D. Very poor
48%
32%
20%
or
po
Ve
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tp
oo
So
m
ew
ha
tg
oo
So
m
ew
ha
go
Ve
ry
Mean = 2.88
r
d
od
0%
How would YOU rate this type of management
system with respect to simplicity?
A. Very good
B. Somewhat good
C. Somewhat poor
D. Very poor
42%
38%
15%
or
po
Ve
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tp
oo
So
m
ew
ha
tg
oo
So
m
ew
ha
go
Ve
ry
Mean = 2.31
r
d
od
4%
Individual
Catch Shares
INDIVIDUAL CATCH SHARES
Questions
Answers
Who can fish?
Only holders of catch shares
When, where and
how can they fish?
Only when, where and how managers allow fishing
How much can an
individual fisherman
catch?
Only as much as his individual quota (his catch share of
the Total Allowable Catch)
What limits the total
catch?
The Total Allowable Catch (TAC)
Real-world fishery
examples?
Notes and
comments?
INDIVIDUAL CATCH SHARES
What is good or bad about this fishery management system?
Evaluation criteria
Resource protection
What is good or bad about this system?
Depends on well-defined the stocks are
Economic efficiency
Fairness
Simplicity
OTHER:
Requires a high level of monitoring and administration
INDIVIDUAL CATCH SHARES
How good or bad do YOU think this fishery management system is?
For each evaluation criterion, what score would YOU give it?
Evaluation criteria
Resource protection
Economic efficiency
Fairness
Simplicity
1 = very good
2 = somewhat good
3 = somewhat poor
4 = very poor
How would YOU rate this type of management
system with respect to resource protection?
A. Very good
B. Somewhat good
C. Somewhat poor
D. Very poor
79%
17%
or
po
Ve
ry
tp
oo
So
m
ew
ha
tg
oo
So
m
ew
ha
go
Ve
ry
Mean = 1.25
0%
r
d
od
4%
How would YOU rate this type of management
system with respect to economic efficiency?
A. Very good
B. Somewhat good
C. Somewhat poor
D. Very poor
56%
44%
or
po
Ve
ry
tp
oo
So
m
ew
ha
tg
oo
So
m
ew
ha
go
Ve
ry
Mean = 1.44
0%
r
d
od
0%
How would YOU rate this type of management
system with respect to fairness?
40%
A. Very good
B. Somewhat good
C. Somewhat poor
D. Very poor
36%
or
Ve
ry
po
r
tp
oo
So
m
ew
ha
tg
oo
So
m
ew
ha
go
Ve
ry
Mean = 3.00
12%
d
od
12%
How would YOU rate this type of management
system with respect to simplicity?
A. Very good
B. Somewhat good
C. Somewhat poor
D. Very poor
56%
22%
or
Ve
ry
po
r
tp
oo
So
m
ew
ha
tg
oo
So
m
ew
ha
go
Ve
ry
Mean = 2.67
11%
d
od
11%
Group Catch
Shares
GROUP CATCH SHARES
Questions
Answers
Who can fish?
Only those authorized by the group
When, where and
how can they fish?
Only when, where and how managers and the Group
allow fishing
How much can an
individual fisherman
catch?
Only as much as the Group allows
What limits the total
catch?
The Total Allowable Catch (TAC). The Group enforces (for
its members) the limit on the total catch of the Group to
the Group’s catch share of the TAC.
Real-world fishery
examples?
Notes and
comments?
GROUP CATCH SHARES
What is good or bad about this fishery management system?
Evaluation criteria
Resource protection
Economic efficiency
Fairness
Simplicity
OTHER:
What is good or bad about this system?
GROUP CATCH SHARES
How good or bad do YOU think this fishery management system is?
For each evaluation criterion, what score would YOU give it?
Evaluation criteria
Resource protection
Economic efficiency
Fairness
Simplicity
1 = very good
2 = somewhat good
3 = somewhat poor
4 = very poor
How would YOU rate this type of management
system with respect to resource protection?
A. Very good
B. Somewhat good
C. Somewhat poor
D. Very poor
0%
ew
So
m
po
Ve
ry
tp
oo
r
or
0%
ha
tg
oo
So
m
ew
ha
go
Ve
ry
0%
d
od
0%
How would YOU rate this type of management
system with respect to economic efficiency?
A. Very good
B. Somewhat good
C. Somewhat poor
D. Very poor
0%
ew
So
m
po
Ve
ry
tp
oo
r
or
0%
ha
tg
oo
So
m
ew
ha
go
Ve
ry
0%
d
od
0%
How would YOU rate this type of management
system with respect to fairness?
A. Very good
B. Somewhat good
C. Somewhat poor
D. Very poor
0%
ew
So
m
po
Ve
ry
tp
oo
r
or
0%
ha
tg
oo
So
m
ew
ha
go
Ve
ry
0%
d
od
0%
How would YOU rate this type of management
system with respect to simplicity?
A. Very good
B. Somewhat good
C. Somewhat poor
D. Very poor
0%
ew
So
m
po
Ve
ry
tp
oo
r
or
0%
ha
tg
oo
So
m
ew
ha
go
Ve
ry
0%
d
od
0%
SelfGovernance
SELF-GOVERNANCE
Questions
Answers
Who can fish?
Only those authorized by the Group
When, where and
how can they fish?
Only when, where and how the Group allows
How much can an
individual fisherman
catch?
Only as much as the Group allows
What limits the total
catch?
The Total Allowable Catch (TAC) established by the Group
Real-world fishery
examples?
Notes and
comments?
SELF-GOVERNANCE
What is good or bad about this fishery management system?
Evaluation criteria
Resource protection
Economic efficiency
Fairness
Simplicity
OTHER:
What is good or bad about this system?
SELF-GOVERNANCE
How good or bad do YOU think this fishery management system is?
For each evaluation criterion, what score would YOU give it?
Evaluation criteria
Resource protection
Economic efficiency
Fairness
Simplicity
1 = very good
2 = somewhat good
3 = somewhat poor
4 = very poor
How would YOU rate this type of management
system with respect to resource protection?
A. Very good
B. Somewhat good
C. Somewhat poor
D. Very poor
0%
ew
So
m
po
Ve
ry
tp
oo
r
or
0%
ha
tg
oo
So
m
ew
ha
go
Ve
ry
0%
d
od
0%
How would YOU rate this type of management
system with respect to economic efficiency?
A. Very good
B. Somewhat good
C. Somewhat poor
D. Very poor
0%
ew
So
m
po
Ve
ry
tp
oo
r
or
0%
ha
tg
oo
So
m
ew
ha
go
Ve
ry
0%
d
od
0%
How would YOU rate this type of management
system with respect to fairness?
A. Very good
B. Somewhat good
C. Somewhat poor
D. Very poor
0%
ew
So
m
po
Ve
ry
tp
oo
r
or
0%
ha
tg
oo
So
m
ew
ha
go
Ve
ry
0%
d
od
0%
How would YOU rate this type of management
system with respect to simplicity?
A. Very good
B. Somewhat good
C. Somewhat poor
D. Very poor
0%
ew
So
m
po
Ve
ry
tp
oo
r
or
0%
ha
tg
oo
So
m
ew
ha
go
Ve
ry
0%
d
od
0%
Summary of Mean Scores for Each System
1
Unregulated open
access
2
Regul-ated
open access
3
Limited
entry
4
Individual
catch shares
A. Resource
protection
3.62
2.27
1.74
1.25
B. Economic
efficiency
3.46
3.3
2.32
1.44
C. Fairness
2.83
2.15
2.88
3.0
D. Simplicity
1.4
2.62
2.31
2.67
MY HYPOTHESIS:
There is no “perfect” fishery management system
• No system performs “best” with respect to all objectives
• Systems that perform well with respect to some objectives may
perform poorly with respect to other objectives
DID YOU AGREE?
My conclusion . . .
For any society, the “best”
fishery management system
depends upon the society’s
objectives as well as the
specific circumstances of the
society, the fishery, markets,
and technology.