Fisheries Management Systems: Objectives and Performance A Guest Lecture Prepared for the United...

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

mailto:[email protected]

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?

A. Very important

B. Somewhat important

C. Not very important

96%

0%4%

How important do YOU consider economic efficiency as a fisheries management objective?

A. Very important



67%

4%

30%

How important do YOU consider fairness as a fisheries management objective?

A. Very important



39%

11%

50%

How important do YOU consider simplicity as a fisheries management objective?

A. Very important



59%

15%

26%

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 scoresMake a table with 5 rows and 7 columns, like this:

Your name (or alias) ________________________

1Unregul-

ated open

access

2Regul-ated open

access

3Limited

entry

4Individual

catch shares

5Group catch

shares

7Self-

govern-ance

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

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 headFormerly like this in IcelandMortality Depends on the level of technology; depends on environmentDepends on the speciesDevil is in the details!

Economic efficiency Poor; inefficient;

Fairness Totally fair—equal for allTotally unfair—poverty trap

Simplicity Very simple and easy

OTHER:


How good or bad do YOU think this fishery management system is?For each evaluation criterion, what score would YOU give it?

Evaluation criteria

1 = very good2 = somewhat good3 = somewhat poor

4 = very poor

Resource protection

Economic efficiency

Fairness

Simplicity

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

4%

81%

4%12%

Mean = 3.62

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

4%

62%

27%

8%

Mean = 3.46

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%

15%

27%

Mean = 2.38

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

80%

8%4%8%

Mean = 1.40

Regulated Open Access

Questions Answers

Who can fish? Anyone


Only when, where and how managers allow fishing


As much as he can, given management regulations


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.


Notes and comments?

REGULATED OPEN ACCESS




Resource protection 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”



Evaluation criteria


4 = very poor

Resource protection

Economic efficiency

Fairness

Simplicity


A. Very good

B. Somewhat good

C. Somewhat poor

D. Very poor19%

8%

31%

42%

Mean = 2.27


A. Very good

B. Somewhat good

C. Somewhat poor

D. Very poor

5%

40%

55%

0%

Mean = 3.30


A. Very good

B. Somewhat good

C. Somewhat poor

D. Very poor

15%

4%

23%

58%

Mean = 2.15


A. Very good

B. Somewhat good

C. Somewhat poor

D. Very poor

8%

19%

31%

42%

Mean = 2.62

Limited Entry

Questions Answers

Who can fish? Only holders of limited entry permits




As much as he can, given management regulations


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.


Notes and comments?

LIMITED ENTRY

LIMITED ENTRY



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


Evaluation criteria


4 = very poor

Resource protection

Economic efficiency

Fairness

Simplicity


A. Very good

B. Somewhat good

C. Somewhat poor

D. Very poor 30%

0%4%

65%

Mean = 1.74


A. Very good

B. Somewhat good

C. Somewhat poor

D. Very poor

8%4%

32%

56%

Mean = 2.32


A. Very good

B. Somewhat good

C. Somewhat poor

D. Very poor

0%

20%

48%

32%

Mean = 2.88


A. Very good

B. Somewhat good

C. Somewhat poor

D. Very poor15%

4%

38%42%

Mean = 2.31

Individual Catch Shares

Questions Answers

Who can fish? Only holders of catch shares




Only as much as his individual quota (his catch share of the Total Allowable Catch)


The Total Allowable Catch (TAC)


Notes and comments?

INDIVIDUAL CATCH SHARES




Resource protection Depends on well-defined the stocks are

Economic efficiency

Fairness

Simplicity Requires a high level of monitoring and administration

OTHER:



Evaluation criteria


4 = very poor

Resource protection

Economic efficiency

Fairness

Simplicity


A. Very good

B. Somewhat good

C. Somewhat poor

D. Very poor

79%

0%4%

17%

Mean = 1.25


A. Very good

B. Somewhat good

C. Somewhat poor

D. Very poor

56%

0%0%

44%

Mean = 1.44


A. Very good

B. Somewhat good

C. Somewhat poor

D. Very poor

12%

36%40%

12%

Mean = 3.00


A. Very good

B. Somewhat good

C. Somewhat poor

D. Very poor

11% 11%

56%

22%

Mean = 2.67

Group Catch Shares

Questions Answers

Who can fish? Only those authorized by the group


Only when, where and how managers and the Group allow fishing


Only as much as the Group allows


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.


Notes and comments?

GROUP CATCH SHARES

GROUP CATCH SHARES



Resource protection

Economic efficiency

Fairness

Simplicity

OTHER:

GROUP CATCH SHARES


Evaluation criteria


4 = very poor

Resource protection

Economic efficiency

Fairness

Simplicity


A. Very good

B. Somewhat good

C. Somewhat poor

D. Very poor

0% 0%0%0%


A. Very good

B. Somewhat good

C. Somewhat poor

D. Very poor

0% 0%0%0%


A. Very good

B. Somewhat good

C. Somewhat poor

D. Very poor

0% 0%0%0%


A. Very good

B. Somewhat good

C. Somewhat poor

D. Very poor

0% 0%0%0%

Self-Governance

Questions Answers

Who can fish? Only those authorized by the Group


Only when, where and how the Group allows


Only as much as the Group allows


The Total Allowable Catch (TAC) established by the Group


Notes and comments?

SELF-GOVERNANCE

SELF-GOVERNANCE



Resource protection

Economic efficiency

Fairness

Simplicity

OTHER:

SELF-GOVERNANCE


Evaluation criteria


4 = very poor

Resource protection

Economic efficiency

Fairness

Simplicity


A. Very good

B. Somewhat good

C. Somewhat poor

D. Very poor

0% 0%0%0%


A. Very good

B. Somewhat good

C. Somewhat poor

D. Very poor

0% 0%0%0%


A. Very good

B. Somewhat good

C. Somewhat poor

D. Very poor

0% 0%0%0%


A. Very good

B. Somewhat good

C. Somewhat poor

D. Very poor

0% 0%0%0%

Summary of Mean Scores for Each System

1Unregul-

ated open access

2Regul-ated open access

3Limited

entry

4Individual

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.

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