Operational tools and adaptive management

0 Summary
In the Green Paper on the Reform of the Common Fisheries Policy (CFP) (COM 2009 163),
ecosystem based management (EBM) is a focal concept. EBM implies the application of a
more holistic perspective when managing commercially exploited fish stocks in EU waters. A
holistic perspective in turn requires the consideration of
a. other users (species) belonging to the same ecosystem
b. other uses (user groups) of the ecosystem
In this report we focus upon the second aspect of an ecosystem based approach to fisheries
management in that we analyse and discuss the effects of allowing user groups of the
ecosystems that commercial stocks belong to, have a say in the management of these stocks.
We also discuss the first aspect, in the analysis of management tools, where many of the
different tools applied have specific aims with regard to interactions with the ecosystems.
The use of different tools to regulate input and/or output in the EU fisheries has varied over
time and across countries and fisheries, and still does. In all EU fisheries several tools are
applied simultaneously, and whereas there is always a good reason for introducing a specific
tool to regulate a specific aspect of a specific fishery, it has not always been the case that the
effects of the new tools have been assessed given the existing tools already regulating the
fishery. Furthermore, management tools or measures are put in place at several levels, both at
an EU level and a national level. On this background we start out this report by making an
inventory of the most common tools applied in the regulation of the EU fisheries, and discuss
their intended and actual effectiveness.
The tools used to regulate the EU fisheries are divided into three groups;
a) tools to regulate input
b) tools to regulate output
c) economic tools (incentive mechanisms)
The main argument for applying different tools to manage the fisheries activity is that they are
efficient in reaching particular (intended) aims. In order to assess the efficiency of the
different tools we have first assessed their intended effect on four specified aspects (politically
acceptability, cost effectiveness, ecological effectiveness and dynamical effectiveness). Next,
we have collected the expert opinion of the diverse MEFEPO project members regarding the
intended effects of the different tools. The results show great divergence of opinion, but also
some agreement. This illustrates which tools can successfully be implemented on an overall
EU level, and which are more appropriately implemented at a national level.
Moving to stakeholder involvement , in the inclusion of new stakeholders in the management
of the fisheries we have simplified the use of tools, and concentrated on measures which can
be translated into (economic) terms which either deter effort (make effort more expensive) or
promote effort (make effort cheaper). Taking an ecosystem perspective, we have assumed that
the new stakeholders given a say in the management of the fisheries represent
“environmental” aspects, either in the form of interest groups representing other species in the
eco-system (e.g. bird watchers), or environmental NGOs (ENGOs) whose aim it is to make
fisheries sustainable. Formally, we have given them a say in the fisheries management by
letting them formulate an incentive scheme where they on the one hand can tax or subsidy the
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