Applicability of community fisheries management: What fisheries and situations?

Applicability of community fisheries management:

What fisheries and situations?

Jon G. SutinenEnvironmental & Natural Resource EconomicsEnvironmental & Natural Resource Economics

University of Rhode IslandUniversity of Rhode Island

USAUSA

Some Basic IssuesSome Basic Issues

• What makes up a ‘community’?What makes up a ‘community’?

• How large is a ‘community’?How large is a ‘community’?

• What is the essential feature of ‘community’ What is the essential feature of ‘community’ for community fisheries management for community fisheries management (CFM)?(CFM)?

• When/where is CFM necessary, or When/where is CFM necessary, or particularly valuable?particularly valuable?


• What makes up a ‘community’?What makes up a ‘community’?– a set of people (or economic agents) with some shared a set of people (or economic agents) with some shared

elementelement • of interests, of placeof interests, of place• of resource users (crew, suppliers, buyers, voters, etc.)of resource users (crew, suppliers, buyers, voters, etc.)

• How large is a ‘community’?How large is a ‘community’?– What size? How many members?What size? How many members?– What scope? What scope?

• All species, all gear types?All species, all gear types?• All ports? All ports?


• What is the essential significance of What is the essential significance of ‘community’ for CFM?‘community’ for CFM?– evokes a sense of collectivityevokes a sense of collectivity

• collective choice by independent economic agentscollective choice by independent economic agents

• When/where is CFM necessary, or When/where is CFM necessary, or particularly valuable?particularly valuable?

Community Fisheries

Management for

Recreational Fisheries

PurposePurpose

• Propose CFM as a way to fully integrate the Propose CFM as a way to fully integrate the recreational sector into the management of recreational sector into the management of – the Red Snapper fishery in the Gulf of Mexicothe Red Snapper fishery in the Gulf of Mexico

• a typical mixed recreational-commercial marine a typical mixed recreational-commercial marine fisheryfishery

• Design an almost ideal organizationDesign an almost ideal organization– for community recreational fishery managementfor community recreational fishery management

Red Snapper FisheryRed Snapper Fishery

• An important component of the large multi-species An important component of the large multi-species reef fish fishery in the Gulf of Mexicoreef fish fishery in the Gulf of Mexico

• Red snapper is one of the primary reef fish targeted Red snapper is one of the primary reef fish targeted by both commercial and recreational fishing by both commercial and recreational fishing sectorssectors

• Red snapper stock is currently classified as both Red snapper stock is currently classified as both – overfished and overfished and

– subject to overfishing subject to overfishing

Panama City, Florida

Panama City, Florida

Red Snapper fisheryRed Snapper fishery

• Commercial harvests in general correspond Commercial harvests in general correspond with the commercial TACwith the commercial TAC

• Recreational harvests have often exceeded Recreational harvests have often exceeded the official recreational TACthe official recreational TAC– Often by significant marginsOften by significant margins

0

1

2

3

4

5

6

7

1988 1990 1992 1994 1996 1998 2000 2002

Year

Har

vest

(M

P) Commercial Harvest

Recreational Harvest

Commercial Quota

Recreational Quota

Red Snapper Harvest & TACsRed Snapper Harvest & TACs


• For-hire boats land 70%For-hire boats land 70%– Charter 42%Charter 42%– Headboats 28% Headboats 28%

• Both fishery sectors reveal a pattern in Both fishery sectors reveal a pattern in which open days have diminished over timewhich open days have diminished over time– Even as the total harvest has remained relatively Even as the total harvest has remained relatively

constantconstant – This is typical of competitive TAC management This is typical of competitive TAC management

Days OpenDays OpenRed Snapper FisheryRed Snapper Fishery

0

50

100

150

200

250

300

350

400

1988 1990 1992 1994 1996 1998 2000 2002

Year

Day

s O

pen

Commercial

Recreational


• Also a trend towards Also a trend towards – smaller bag limits and smaller bag limits and – increasing minimum lengthincreasing minimum length

• Uniform management measuresUniform management measures– Entire Gulf of MexicoEntire Gulf of Mexico

Red Snapper ManagementRed Snapper Management

• The GMFMC sets management regulations over a The GMFMC sets management regulations over a wide spatial scalewide spatial scale– The recreational season for red snapper in the Gulf of The recreational season for red snapper in the Gulf of

Mexico, Mexico, • runs from April 21 through October 31, runs from April 21 through October 31,

• applies throughout the Gulf, applies throughout the Gulf,

– With no local or regional variationWith no local or regional variation

– The particular dates of the open season, reportedly do The particular dates of the open season, reportedly do not provide optimal benefits to anglers in all geographic not provide optimal benefits to anglers in all geographic areasareas

Red Snapper ManagementRed Snapper Management

• Current management Current management – Declining benefits from recreational fishingDeclining benefits from recreational fishing– Not serving local & regional interestsNot serving local & regional interests– Weak control over fishing mortalityWeak control over fishing mortality

• Current trendsCurrent trends– Point to a dismal futurePoint to a dismal future


• Red snapper reflects a general set of problems with Red snapper reflects a general set of problems with recreational fishery managementrecreational fishery management– U.S., Australia & New ZealandU.S., Australia & New Zealand

• Weak control of recreational catch levelsWeak control of recreational catch levels– threatens to undermine the sustainability of fisheriesthreatens to undermine the sustainability of fisheries

• Expansion of fishing effort by both recreational Expansion of fishing effort by both recreational and commercial sectors and commercial sectors – Especially during the 1990s Especially during the 1990s – Placed fish stocks under pressure in several fisheriesPlaced fish stocks under pressure in several fisheries

ConflictConflict

• The growth of the recreational and The growth of the recreational and commercial fishing sectors has caused commercial fishing sectors has caused – conflicts between the two sectorsconflicts between the two sectors

• Conflicts between the two competing Conflicts between the two competing sectors typically concern the allocation of sectors typically concern the allocation of the fishery resourcethe fishery resource– A prominent example of this conflict involves A prominent example of this conflict involves

the allocation of quota in fisheries managed the allocation of quota in fisheries managed under a total allowable catch (TAC)under a total allowable catch (TAC)

ConflictConflict

• The TAC is divided between the two sectors such The TAC is divided between the two sectors such that the commercial sector and recreational sector that the commercial sector and recreational sector each receives a percentage of the TAC each receives a percentage of the TAC – The commercial sector may be subject to a ‘hard’ TAC, The commercial sector may be subject to a ‘hard’ TAC,

• in which the commercial fishery is closed when the quota is in which the commercial fishery is closed when the quota is met, met,

– While no hard cap on catch restricts the recreational While no hard cap on catch restricts the recreational sector sector

• target achieved indirectly using a combination of bag limits, target achieved indirectly using a combination of bag limits, size restrictions, and seasonal closuressize restrictions, and seasonal closures

ConflictConflict

• Overages of the TAC subtracted fromOverages of the TAC subtracted from– Either next season’s TAC, Either next season’s TAC, – Or next season’s Or next season’s commercial commercial share of the TACshare of the TAC

• This indirect penalty on the commercial This indirect penalty on the commercial sector causes conflict between the two sector causes conflict between the two sectorssectors

• Conflict also caused by use of different Conflict also caused by use of different management measures in the two sectorsmanagement measures in the two sectors

ProspectsProspects

• Significant economic gains may be realized Significant economic gains may be realized through management arrangements that through management arrangements that – successfully integrate the recreational sector successfully integrate the recreational sector

into overall fishery management, into overall fishery management, – control fishing mortality, and control fishing mortality, and – address the dispersion and heterogeneity address the dispersion and heterogeneity

characteristics of the recreational fisherycharacteristics of the recreational fishery – ““Integrated Management”Integrated Management”

Management IntegrationManagement Integration

• What is integrated management?What is integrated management? – Management measures & other arrangements Management measures & other arrangements

applied to the recreational sector applied to the recreational sector thatthat• Achieve the goals of the fishery management planAchieve the goals of the fishery management plan

– such as sustainability and socioeconomic objectives such as sustainability and socioeconomic objectives

• Achieve the agreed upon allocation of catches Achieve the agreed upon allocation of catches – among recreational, commercial, and other user groupsamong recreational, commercial, and other user groups


• The recreational sector of the Red Snapper The recreational sector of the Red Snapper fishery is fishery is not fully integrated not fully integrated into the fishery into the fishery management programmanagement program– The management measures provide little or only The management measures provide little or only

weak control weak control over recreational fishing mortality; over recreational fishing mortality; & &

– The measures allows one sector to The measures allows one sector to erode erode the the amount of catch to which the other sector is amount of catch to which the other sector is entitled. entitled.


• Principles of integrationPrinciples of integration– Derived from theory & evidenceDerived from theory & evidence– Necessary & sufficient conditionsNecessary & sufficient conditions

• For integrated recreational fishery managementFor integrated recreational fishery management

7 Principles of Integrated 7 Principles of Integrated Recreational ManagementRecreational Management

• Desirable only where the Desirable only where the benefits benefits outweigh the outweigh the costs of integration.costs of integration.

• A mechanism must exist for A mechanism must exist for allocating allocating catches catches among recreational and other user groups as a among recreational and other user groups as a precondition for integrated recreational precondition for integrated recreational management. management.

• Managers must implement measures that provide a Managers must implement measures that provide a high degree of high degree of control control over recreational fishing over recreational fishing mortality. mortality.

7 Principles of Integrated 7 Principles of Integrated Recreational ManagementRecreational Management

• Management should be based on a system of Management should be based on a system of strong angling strong angling rightsrights. .

• Angling rights should be assigned to Angling rights should be assigned to groups groups as as well as individuals in recreational fisheries. well as individuals in recreational fisheries.

• Management should be Management should be decentralized decentralized – with limited management authority devolved to and with limited management authority devolved to and

shared with local organizations and governing shared with local organizations and governing institutions. institutions.

• Cost recovery Cost recovery should be applied to recreational should be applied to recreational fishery managementfishery management

Community-Based Recreational Community-Based Recreational Fisheries ManagementFisheries Management

• Angling Management Organizations Angling Management Organizations – Combine Combine

• Community-based managementCommunity-based management– Local controlLocal control

• Strong angling rightsStrong angling rights– Exclusive right to a share of the TACExclusive right to a share of the TAC

– Satisfy the 7 principles of integrated Satisfy the 7 principles of integrated managementmanagement

• Scientifically soundScientifically sound

Community-Based Recreational Community-Based Recreational Fisheries ManagementFisheries Management

• The hallmark of the proposed approach is The hallmark of the proposed approach is – the devolution of management authority within the devolution of management authority within

a rights-based frameworka rights-based framework

• The details of on-the-ground AMO The details of on-the-ground AMO development and management are to be left development and management are to be left largely to stakeholderslargely to stakeholders– in this case those involved in the recreational in this case those involved in the recreational

GOM reef fish fisheryGOM reef fish fishery

Design ElementsDesign Elements

• Rights & dutiesRights & duties

• OwnershipOwnership

• MembershipMembership

• Management measuresManagement measures

• Access to the fisheryAccess to the fishery

• Quota tradingQuota trading

• Funding/financingFunding/financing

• Spatial attributesSpatial attributes

• Initial allocationInitial allocation– QuotaQuota

– AMO sharesAMO shares

• EligibilityEligibility

• Attributes ofAttributes of– QuotaQuota

– AMO sharesAMO shares

• Scope & size of AMOsScope & size of AMOs

• Monitoring & enforcementMonitoring & enforcement

• Transition Transition

How would you design a community How would you design a community recreational fishery management recreational fishery management

organization?organization?

1.1. Rights & dutiesRights & duties

2.2. OwnershipOwnership

3.3. MembershipMembership

4.4. Management measuresManagement measures

5.5. Access to the fisheryAccess to the fishery

6.6. Quota tradingQuota trading

7.7. Funding/financingFunding/financing

8.8. Spatial attributesSpatial attributes

9.9. Initial allocationInitial allocation– QuotaQuota– AMO sharesAMO shares

10.10. EligibilityEligibility11.11. Attributes ofAttributes of

– QuotaQuota– AMO sharesAMO shares

12.12. Scope & size of AMOsScope & size of AMOs13.13. Monitoring & Monitoring &

enforcementenforcement14.14. Transition Transition

Breakout SessionBreakout Session

An approach: AMOsAn approach: AMOs

Sutinen, J.G. and R.J. Johnston. 2003. Angling Sutinen, J.G. and R.J. Johnston. 2003. Angling Management Organizations: Integrating the Management Organizations: Integrating the Recreational Sector into Fishery Recreational Sector into Fishery Management. Management. Marine Policy 27: 471-487Marine Policy 27: 471-487 (November).(November).

Angling Management Angling Management OrganizationsOrganizations

• AMOs are non-governmental organizations AMOs are non-governmental organizations – comprised of groups of those with interests in comprised of groups of those with interests in

the recreational fisherythe recreational fishery• typically recreational anglerstypically recreational anglers

• Angling rights are assigned to AMOs, Angling rights are assigned to AMOs, – through an assignment of a share of the through an assignment of a share of the

recreational total allowable catch (TAC) recreational total allowable catch (TAC) applicable to each AMOapplicable to each AMO


• Individual anglers Individual anglers – Own shares in a particular AMO, Own shares in a particular AMO,

• much as one might own shares or stock in a private much as one might own shares or stock in a private corporation.corporation.

– May trade shares in AMOs May trade shares in AMOs

• AMOs own quota shares AMOs own quota shares – AMOs may trade quota much like traditional AMOs may trade quota much like traditional

IFQsIFQs• Individual anglers do not own quota sharesIndividual anglers do not own quota shares


• An exclusive right An exclusive right – to determine how to use its share of the recreational to determine how to use its share of the recreational

TAC; TAC;

• Shareholders of an AMO possess a Shareholders of an AMO possess a collectivecollective right right – to manage harvestto manage harvest

• Authority Authority – to implement measures to optimize socioeconomic to implement measures to optimize socioeconomic

objectives; objectives;


• A non-governmental organization of A non-governmental organization of anglers; anglers; – Financially independent and sustainable; Financially independent and sustainable;

• AMOs are for-profit organizationsAMOs are for-profit organizations– AMO stock has valueAMO stock has value


• Provides equal opportunity to fish Provides equal opportunity to fish – to all anglers. to all anglers.

• All anglers – whether or not they are All anglers – whether or not they are shareholdersshareholders– Have an equal opportunity to Have an equal opportunity to

• acquire a unit of the AMO’s harvest right, acquire a unit of the AMO’s harvest right,

• i.e. to acquire the right to catch a unit of the quota i.e. to acquire the right to catch a unit of the quota

– Purchase a license, punch card, or fish tagPurchase a license, punch card, or fish tag


• Attributes of AMOs Attributes of AMOs – An exclusive right to determine how to use its An exclusive right to determine how to use its

share of the recreational TAC; share of the recreational TAC; – Authority to implement measures to optimize Authority to implement measures to optimize

socioeconomic objectives; socioeconomic objectives; – A non-governmental organization of anglers; A non-governmental organization of anglers; – Financially independent and sustainable; Financially independent and sustainable; – Provides equal opportunity to fish to all Provides equal opportunity to fish to all

recreational anglers. recreational anglers.

How would AMOs work?How would AMOs work?

• An AMO would be allocated a share of the TAC An AMO would be allocated a share of the TAC each yeareach year– E.g., 1.0 million lbsE.g., 1.0 million lbs

• The AMO would have the The AMO would have the rightright and and responsibilityresponsibility to manage its quotato manage its quota

• The AMO would set the management measuresThe AMO would set the management measures– Bag limitBag limit– Season (open days the recreational fishery)Season (open days the recreational fishery)– Other measuresOther measures

ImplementationImplementation

• Scope & sizeScope & size– Different for each AMODifferent for each AMO

– May be defined by any or all of the followingMay be defined by any or all of the following• Geographically, Geographically,

• By harvest category (charter, head, not-for-hire)By harvest category (charter, head, not-for-hire)

• By speciesBy species

– Optimal S&S unknown Optimal S&S unknown ex anteex ante• Start large, one each in Eastern & Western GOMStart large, one each in Eastern & Western GOM

• Facilitate separation into smaller AMOsFacilitate separation into smaller AMOs

ImplementationImplementation

• Transition authorityTransition authority– Facilitate formation of provisional AMOsFacilitate formation of provisional AMOs

• Limited time frame (e.g., 3 years)Limited time frame (e.g., 3 years)• Develop plan for managing its share of the TAC(s)Develop plan for managing its share of the TAC(s)

– Appointed & responsible to Secretary of CommerceAppointed & responsible to Secretary of Commerce– Expert staff & budgetExpert staff & budget– Members withMembers with

• Privatization experiencePrivatization experience• Business management experienceBusiness management experience• Fishery management experience, plusFishery management experience, plus• Recreational sector representativesRecreational sector representatives

Expected AchievementsExpected Achievements

• Full integration of the recreational fishery Full integration of the recreational fishery – in the management system, in the management system,

• Sustainable utilization Sustainable utilization – of fishery resources, of fishery resources,

• Optimal socioeconomic benefitsOptimal socioeconomic benefits– to anglers & coastal communities, to anglers & coastal communities,

• Financially sustainable management Financially sustainable management – of recreational fishery resources, of recreational fishery resources,


• Self-sufficiency and self-determination, Self-sufficiency and self-determination, • Professional staffs Professional staffs

– to guide management and negotiate with to guide management and negotiate with government and other stakeholders, government and other stakeholders,

• Greater compliance with regulationsGreater compliance with regulations– by anglers, by anglers,

• Superior means of resolving conflicts Superior means of resolving conflicts among stakeholders, among stakeholders,


• Greater balance of influence and power Greater balance of influence and power among stakeholders in political and among stakeholders in political and commercial marketplaces commercial marketplaces – since AMOs are the recreational equivalents of since AMOs are the recreational equivalents of

commercial quota owner associations & commercial quota owner associations & companiescompanies

Other OptionsOther Options

• Status quoStatus quo– Is inferior to all other management alternativesIs inferior to all other management alternatives

• Superior to status quo, but not preferredSuperior to status quo, but not preferred– Sub-regional recreational councilsSub-regional recreational councils– Sub-regional recreational advisory committeesSub-regional recreational advisory committees– State & local managementState & local management

• Not preferred becauseNot preferred because– Angling rights are not strengthenedAngling rights are not strengthened– Weak accountability Weak accountability

Other OptionsOther Options

• IFQs in the for-hire sectorIFQs in the for-hire sector– Superior to options aboveSuperior to options above– Alaska halibut charter IFQsAlaska halibut charter IFQs

• Applying IFQs to all components of the Applying IFQs to all components of the recreational sector is problematicrecreational sector is problematic– E.g., noncompliance by not-for-hire fishersE.g., noncompliance by not-for-hire fishers

ConclusionsConclusions

• AMOs are superior to other options AMOs are superior to other options – because of the desirable mix of incentives because of the desirable mix of incentives

created by the proposed structure of these created by the proposed structure of these community-based organizations community-based organizations

• ElsewhereElsewhere– we also develop a practical strategy for we also develop a practical strategy for

implementing a network of AMOs in the red implementing a network of AMOs in the red snapper fishery, based on prior work in the snapper fishery, based on prior work in the establishment of fishery co-management. establishment of fishery co-management.

Documents

Applicability of community fisheries management: What fisheries and situations?