Transcript Slide 1

Fishery management
FMSP Stock Assessment Tools
Training Workshop
Bangladesh
19th - 25th September 2005
Purpose of talk
To introduce a framework for fishery management based
on the FAO Code of Conduct for Responsible Fisheries
Complements Chapters 1-2 of FAO Fish. Tech. Pap. 487,
as published by FMSP project R8360
Chapters 1-2
Content
Fishery management systems - a framework
The new international legal regime
The precautionary approach
Adaptive management
Goals and operational objectives
Indicators and reference points
Decision control rules
Management measures
Tying it all together - Management plans
Fishery management systems
A fishery management system is the overall combination of
policies, legal arrangements, stock assessment
methodologies, reference points, management measures,
and monitoring and enforcement arrangements used to
manage a fishery.
Chapter 2
A framework for fishery management (FTP 487)
The management context
The legal regime
• Domestic laws
• International agreements
Fishery Policy
Define management intentions
• Policy goals and operational objectives (biological,
ecological, economic, social, other sectors)
Section 2.5.1
Management approach to
uncertainty
• Precautionary or adaptive
management? Or both?
Management scope
• Single or multi-species?
• Ecosystem approach?
Property rights
• Use rights?
• Control rights?
Stakeholder roles in
management
• State or community control?
• Co-management?
Fishery scale
• Industrial or artisanal?
• Economically important?
Management capacity
• Technical skills, staff, funds?
Sections 1.1 and 2.1 – 2.4
Management process
Fishery Management Plan
Define management standards
For each operational objective:
• Conceptual reference points
(target, limit, precautionary)
• Indicators
• Technical reference points
Set management measures
• Decision control rules defined by
reference points and harvesting strategy
• Management strategy, comprising
one or more control measures
(inputs; outputs; technical, ecological etc)
Monitoring Control and Surveillance
Stock assessment process
Data/Inputs
Intermediate parameters
Indicators
Reference
points
Management advice
in terms of risk,
allowing for uncertainty
Chapters 3 and 4
and Parts 2 and 3
Sections 2.5.2 – 2.5.5
Figure 1.1
The new international legal regime
1992 Convention on Biological Diversity
Chapter 17 of UNCED’s Agenda 21
1995 UN ‘Fish Stocks Agreement’
1995 FAO Code of Conduct for Responsible Fisheries
2002 Johannesburg World Summit on Sustainable
Development (WSSD)
Section 1.1
The precautionary approach
All fishery managers face many uncertainties:
• Current state of fish stocks? Long term potential? Effect of
environment, climate and other species?
FAO Code of Conduct advises that:
• 7.5.1 States should apply the precautionary approach widely to
conservation, management and exploitation of living aquatic resources
in order to protect them and preserve the aquatic environment. The
absence of adequate scientific information should not be used as a
reason for postponing or failing to take conservation and management
measures.
• 7.5.2 In implementing the precautionary approach, States should take
into account, inter alia, uncertainties relating to the size and productivity
of the stocks, reference points, stock condition in relation to such
reference points, levels and distribution of fishing mortality and the
impact of fishing activities, including discards, on non-target and
associated or dependent species, as well as environmental and socioeconomic conditions.
Section 2.1.2
A precautionary management process
A management system should be developed with
stakeholders, including the following elements:
• Goals and operational objectives
• Performance indicators and reference points
• Harvesting strategies and decision control rules, including
precautionary reference points allowing for uncertainty
• Management measures and overall management strategy
– See FAO FTP 487 Chapter 2
– and Cochrane, 2002 for further details
Section 2.5
Adaptive management
Too much precaution may provide little information about the dynamics
of the fish stock (don’t know MSY until it has been exceeded!)
Adaptive management – ‘learning by doing’ – uses an experimental
approach to reduce uncertainty and find good management solutions
Can be ‘passive’ (using natural variation) or ‘active’ – need to create
good ‘contrast’ in treatments to get results
Most useful in inshore and inland resources, with high levels of natural
diversity and where resource can be split into separate stock units
Guidelines developed by FMSP projects R7335 and R7834 (on
http://www.fmsp.org website)
Section 2.1.3
Goals and operational objectives (1/3)
Goals set the specific priorities
for each fishery
Operational objectives’ like
OVIs in a logical framework
should be precise,
measurable, realistic and
achievable
Some objectives will be
incompatible – need to
accept tradeoffs
Section 2.3.1
Goals and operational objectives (2/3)
Need to consider four subsets of goals: biological;
ecological; economic and social
For sustainable development, give first priority to biology
Section 2.3.1
Examples of goals and op. objectives (3/3)
Goals
Operational Objectives
Biological
To maintain the target species
at or above the levels
necessary to ensure their
continued productivity
To maintain the stock at all times above 50%
of its mean unexploited level
Ecological
To minimise the impacts of
fishing on the physical
environment and on non-target
(bycatch), associated and
dependent species
To maintain all non-target, associated and
dependent species above 50% of their mean
biomass levels in the absence of fishing
activities
Economic
To maximise the net incomes of
the participating fishers
To stabilise net income per fisher at a level
above the national minimum desired income
Social
To maximise employment
opportunities for those
dependent on the fishery for
their livelihoods
To include as many of the existing
participants in the fishery as is possible
given the biological, ecological and
economic objectives listed above
Section 2.3.1
Indicators and reference points
Set indicators and reference points for each operational objective
An indicator is a specific state, or variable, which can be monitored in a
system such as a fishery to give a measure of the state of the
system at any given time (Cochrane, 2002)
A reference point is an estimated value derived from an agreed
scientific procedure and/or an agreed model which corresponds to a
state of the resource and/or of the fishery and can be used as a
guide for fisheries management
Indicators and ‘RP’s should be used in combination to express the
operational objectives in ways that can be measured in quantitative
fisheries assessments.
Section 2.5.2
Indicators
Quantitative measures of the state of the fishery
(one required for each objective)
Often fall into one of three categories
The catch of fish
The size of the fish stock (the ‘biomass’)
The amount of fishing (the ‘pressure’ on the stock)
In the short term, each of these are directly related to each
other as ….. C = F x B
Catch
Catch
Fishing effort
Catch per
unit effort
(CPUE)
Stock size (biomass)
Long term (equilibrium)
relationships
between Catch, Effort and
Stock size Indicators
or
Stock size
(biomass)
(not directly related!)
Fishing effort
Reference points
Give the point to aim at (target) or to avoid (limit) for each
indicator and objective
Can estimate using stock assessment tools (e.g. FMSY, F0.1) (or
set as arbitrary, but agreed values, e.g. C=450mt)
You will provide management advice by comparing current
values of indicators and reference points, e.g.:
If Fnow > FMSY
If Fnow > F0.1
If Fnow < F2/3 MSY
‘Over-fishing’
Potential over-fishing
Assumed to be sustainable
Indicators & Reference Points - examples
• Operational objective - to maintain stock at all times above 50%
of its mean unexploited level
• Reference point - 50% of the carrying capacity, K, as estimated
by the Schaefer production model (i.e. above BMSY) using X data
and Y fitting method
• Indicator - stock size
• Performance indicator - stock size as a percentage of the chosen
reference point (e.g. B / BMSY)
• As another example, YPR is an indicator, while F0.1 and Fmax are
reference points that are based on YPR
Section 2.5.2
Reference points
Conceptual reference points – used in defining the decision
control rules, e.g.
• Limit reference points (LRPs, e.g. Blim, Flim)
• Target reference points (TRPs)
• Precautionary reference points or buffers (e.g. Bpa, Fpa)
Technical reference points – mathematical expressions
used to clearly define each conceptual reference point
• E.g. FMSY, F0.1, BMSY, MBAL etc (see later)
Section 2.3.2
Target or limit reference points?
(defining the objectives and control rules)
Target RP - aim here,
slightly above or
below both OK
Limit RP - avoid
danger zone
below here
Indicator X
Indicator X
E.g. Catch rate
E.g. spawning stock size
Decision control rules – a simple example
FMSY
Fishing
mortality
rate to be
allowed
next year
If Bnow < BMSY,
no fishing
allowed next
year (danger
zone)
If Bnow > BMSY,
fishing
allowed at
rate of FMSY
next year
BMSY
Stock size this year
Section 2.3.3
Precautionary reference points
Such points were adopted in response to the UN Fish
Stocks Agreement (see point 5 of Annex II), to help make
sure that the LRPs are avoided.
Define the point at which managers should take action, to
avoid the LRPs being reached.
The distance by which the precautionary point is removed
from the LRP is usually set according to:
• the uncertainty in the data
• and the risk tolerance of the manager.
Section 2.3.4
And ‘precautionary’ reference points...
Limit
RP
Precautionary
RP
Take action at the
Precautionary RP to
avoid the risk of
getting to the Limit RP
Indicator X
Decision control rules – a ‘precautionary’ example
If Blim < Bnow < Bpa, fishing
allowed next year at a rate
below Fpa, as set by the
sliding scale
Flim
Fpa
Fishing
mortality
rate to be
allowed
next year
If Bnow < Blim,
no fishing
allowed next
year (danger
zone)
If Bnow > Bpa,
fishing
allowed at
rate of Fpa
next year
Blim
Bpa
Stock size this year
Fpa
Using ref. pts.
to monitor the
state of the
fishery
Flim
1990
1991
TARGET ZONE
1992
1993
2000
Axes reversed,
now:
X-axis: pressure
Y-axis: state
Note definitions:
overfishing vs
overfished
1994
Bpa
1999
BUFFER ZONE
1995
Blim
Stock size (biomass)
The
precautionary
plot
used by
ICES (North
Atlantic)
OVERFISHING
1998
OVERFISHED
1996
1997
HIGH RISK
ZONE
Fishing mortality rate
Section 2.3.2
Reference points and
Annex II of the UN Fish Stocks Agreement
4. Management strategies shall seek to maintain or restore
populations of harvested stocks, and where necessary associated
or dependent species, at levels consistent with previously agreed
precautionary reference points. Such reference points shall be
used to trigger pre-agreed conservation and management action.
Management strategies shall include measures which can be
implemented when precautionary reference points are approached.
5. Fishery management strategies shall ensure that the risk of
exceeding limit reference points is very low. If a stock falls below a
limit reference point or is at risk of falling below such a reference
point, conservation and management action should be initiated to
facilitate stock recovery. Fishery management strategies shall
ensure that target reference points are not exceeded on average.
Section 2.3.2
FAO Guidance on Indicators
Most reference points and control rule systems have so far
been set up using age-based stock assessments, e.g.
VPA etc, and using spawning stock biomass to set F
FAO however emphasise the generality of these proposals,
with a ‘basket’ of reference points needed for biological,
ecological, economic and social goals
See FAO ‘sustainable development reference system’
• FAO. 1999. Indicators for sustainable development of marine
capture fisheries. FAO Technical Guidelines for Responsible
Fisheries. No. 8. Rome, FAO. 1999. 68p.
Section 2.3.2
Management measures
1. Input controls (fishing effort restrictions)
2. Output controls (catch limits)
3. Technical measures (size limits, closed seasons, closed
areas etc)
4. Ecological and integrated management
Input and output controls often vary between years,
depending on harvesting strategy and state of stock
Technical measures usually fixed, or updated every few
years based on long-term assessments
Sections 2.3.5 and 5.4
Management plans
The full fishery management system for each fishery unit
should be agreed in advance with stakeholders and
clearly described in a management plan
This should identify the goals, objectives, reference points,
decision control rules, monitoring methods,
management measures etc, ...
.... in addition to specifying clearly the roles, rights and
responsibilities of the fishery management authority and
any other interested parties.
see e.g. FAO, 1997; Die, 2002
Sections 2.3 and 2.4
Process for developing a management plan
Phase IV
Review
How will you know
you are there?
New
plan
Where do you want
to be?
Review
New
plan
Phase II
etc
Do
Plan
Do
Phase I
Where are you now?
Phase III
How are you going
to get there?
See new guidebooks from FMSP project R8468
Summary of the management plan
Purpose
Goals
Phase II
Phase III
Where do you want
to be?
How are you going to
get there?
Objectives
Management
Standards
Management Measures
Indicator
Management
Measures
Reference
Point
Decision
Control
Rules
Biological
Ecological
Social
Economic
How to quantify
the goals and
objectives
How to
achieve the
goals and
objectives
Summary – elements of the fishery system
Context
Legal regime
Approach to uncertainty – precautionary, adaptive or both
Management scope (single species, multi-species or ecosystem) and geographic area
Control rights (co-management, decision making and stakeholder roles)
Allocation of use rights in the fishery (access to fishing, or rights to catches)
Fishery scale – industrial or artisanal, economically important?
Policy
Goals and operational objectives (biological, economic, social, ecological)
Management Process
Decision control rule framework – conceptual and precautionary reference points
Technical reference points and indicators to be used, stock assessment
methodologies and tools, and the data required
Harvesting strategy and management measures
See Part 1 summary tables