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Fishery management

Fishery management. FMSP Stock Assessment Tools Training Workshop Bangladesh 19 th - 25 th September 2005. Purpose of talk. To introduce a framework for fishery management based on the FAO Code of Conduct for Responsible Fisheries

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Fishery management

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  1. Fishery management FMSP Stock Assessment Tools Training Workshop Bangladesh 19th - 25th September 2005

  2. 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

  3. 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

  4. 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

  5. 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 A framework for fishery management (FTP 487) • The management context • The legal regime • Domestic laws • International agreements • 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 • Fishery Policy • Define management intentions • Policy goals and operational objectives (biological, ecological, economic, social, other sectors) • Section 2.5.1 • 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 • Sections 2.5.2 – 2.5.5 Figure 1.1

  6. 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

  7. 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 socio-economic conditions. Section 2.1.2

  8. 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

  9. 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

  10. 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

  11. 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

  12. Examples of goals and op. objectives (3/3) Section 2.3.1

  13. 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

  14. 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

  15. Long term (equilibrium) relationships between Catch, Effort and Stock size Indicators(not directly related!) Catch Catch Stock size (biomass) Fishing effort Catch per unit effort (CPUE) or Stock size (biomass) Fishing effort

  16. 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 ‘Over-fishing’ • If Fnow > F0.1 Potential over-fishing • If Fnow < F2/3 MSY Assumed to be sustainable

  17. 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

  18. 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

  19. Limit RP - avoid danger zone below here • Indicator X Target or limit reference points?(defining the objectives and control rules) • Target RP - aim here, slightly above or below both OK • Indicator X E.g. Catch rate E.g. spawning stock size

  20. 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

  21. 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

  22. 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

  23. 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 If Bnow < Blim, no fishing allowed next year (danger zone) If Bnow > Bpa, fishing allowed at rate of Fpa next year Fishing mortality rate to be allowed next year Blim Bpa Stock size this year

  24. Fpa Flim Using ref. pts. to monitor the state of the fishery 1990 1991 • The precautionary plot • used by • ICES (North Atlantic) • Axes reversed, now: • X-axis: pressure • Y-axis: state • Note definitions: • overfishing vs overfished TARGET ZONE 1992 OVERFISHING 1993 2000 1994 Bpa 1999 1995 BUFFER ZONE Blim 1996 1998 1997 HIGH RISK ZONE OVERFISHED Stock size (biomass) Fishing mortality rate Section 2.3.2

  25. Reference points andAnnex II of the UN Fish Stocks Agreement • 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. • 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. Bangladesh signed 1995, not yet ratified (?) India ratified 2003, now bound to comply Section 2.3.2

  26. 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

  27. Management measures • Input controls (fishing effort restrictions) • Output controls (catch limits) • Technical measures (size limits, closed seasons, closed areas etc) • 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

  28. 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

  29. Process for developing a management plan Phase IV How will you know you are there? Review Phase II Where do you want to be? New plan etc Review New plan Do Plan Do Time Phase I Where are you now? Phase III How are you going to get there? See new guidebooks from FMSP project R8468

  30. Summary of the management plan Phase III How are you going to get there? Phase II Where do you want to be? How to quantify the goals and objectives How to achieve the goals and objectives

  31. 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

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