The outline of the presentation

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1 Linking Local Co-management to the implementation of the European Fisheries Fund and the role of NGOs Laura Píriz Co-management Initiative Swedish Board of Fisheries The outline of the presentation Short Background Introduction of the Swedish Fisheries Co-management Initiative 3 experimental local initiatives The use of FIFG /EFF Possible roles for NGOs Laura Píriz, Swedish Board of Fisheries 1

2 What is co-management? Co-management means an ongoing collaborative and communicative process, where resources users, together with government representatives, and other actors, are in an entrepreneurial and creative role. Co-management is not much about the rules per se as it is about the communicative and collaborative process through which these rules are formed: who participates, how debates are structured, how knowledge is employed, how conflicts of interest are addressed and how agreements are reached (Jentoft, McCay and Wilsson, 1998). Co-management is about processes delivering product. Berkes, et al., 2003 discusse in terms of adaptive co-management and refer to a type of management where institutional arrangements and ecological knowledge are tested and revised in a dynamic, ongoing, self-organised process of learning by doing. Folke, et al., 2005 means adaptive co-management relies on collaboration of a diverse set of stakeholders, operating at different levels, often through networks. Folke, et al., 2005 The outcome situation in any fisheries is the result of much more than that. It is the result of many actors with multiple objectives and involves generally polycentric and nested institutional arrangements operating at multiple scales. For capturing that complexity the authors use the term adaptive governance. Kooiman, 1993 has early referred to this phenomena in terms of distributive governance. Laura Píriz, Swedish Board of Fisheries 2

3 Carlsson and Berkes, 2005 argue that an overemphasis on the power sharing arrangement might run the risk of disregarding the functional side of co-management which should be understood as a continuous problem-solving process. Berkes; Sen & Nielsen and Pomeroy have developed typologies of co-management to describe the relationship between the State and the Stakeholders. E.g. instructive, consultative, cooperative, advisory, informative. The theoretical package supporting co-management and against which the cases could be analyzed is comprehensive COLLECTIVE ACTION (Wade, Ostrom ) PROPERTY RIGHTS (Bromley, Hanna ) CO-MANAGEMENT (McCay, Jentoft & Pinkerton ) GOVERNANCE (Kooiman, Young ) ADAPTIVE SYSTEMS (Holling, Berkes and Folke ) Laura Píriz, Swedish Board of Fisheries 3

4 A simplified picture of the architecture of the Swedish central co-management model EU-COM Scientific & political debate NGOs Subsistence fishers SBF Stock Assessment Conservation Quota negotiations Control Aid Anglers Water owners CBA Habitat restoration Regional development Ministry FA Quota allocation Conflict resolution Göteborg In The destabilization of the Swedish centralized co-management model In late 2003 The Swedish Parliament adopted a policy document prepared by the Ministry of Agric & Fish Laura Píriz, Swedish Board of Fisheries 4

5 Policies looking for consultative collaborative pluralistic resource users corporatist government Source: Own compilation central local In June 2004 In Sep 2004 In Jan 2005 The Ministry commissioned the SBF to test co-management at the local and regional level The SBF invited resource users & stakeholders around the country to submit proposals for local/regional co-management SFI is launched & 3 local co-management initiatives started, 3 started in march when planning funds were delivered Laura Píriz, Swedish Board of Fisheries 5

6 SWEDISH BOARD OF FISHERIES TASK To lead and coordinate at least 5 pilot projects To assess constitutional aspects of local co-management institutions To define functions that these can carry on in the future To test new allocation models for both non-quota and quota based fisheries To report on new decision-making processes and working forms PREMISES 3 pilot projects in marine and 2 in freshwaters Diversity (institutional, ecological and dominant category of fishery) Participatory process that involve wide range of stakeholders and all resource users Test different access and allocation models GUIDELINES Linkages to RAC Linkages ICZM programs Potential for fishery based tourism Laura Píriz, Swedish Board of Fisheries 6

7 National fisheries policy defines the general terms Ecologically sustainable fisheries that: Supports rural development Benefits the coastal (small-scale) commercial fisheries Guarantees public access to recreational fisheries Guarantees the consumers access to fish National quality environmental objectives guide 6 trials of local co-management out of 17 applications Laura Píriz, Swedish Board of Fisheries 7

8 Northern Bohuslän Halland Gotland Prof fishermen Important fisheries Subsistence fishers Important fisheries Archipelago 140 Nephrops Prawns Lobster Mix-Demersal Plaice Mackerel Crab Eel? > 167 Lobster Mackerel Plaice Eel Cod Open Coast 157 Mix- Demersal Nephrops Herring Plaice Eel Crab? Plaice Eel Crab Island 55 Cod Sprat Salmon Turbot Eel? > 79 Flounder Turbot Pike Perch White fish Trout Anglers Important fisheries? 2 local clubs > 50 trout mackerel cod? trout cod 3 clubs trout salmon pike perch Who are they? Constitutional aspect: Steering Committee SFI-Northern Bohuslän Organized professional fishermen Research station SFI-Halland Organized professional fishermen Regional Council SFI-Gotland Organized professional fishermen A Research station Municipality A + B CBA - Nat Cons CBA - Fish SBF Fish Man SBF Fish Res (Anglers in working groups) (Subsistence fishers in working groups) WWF as funding agency CBA-Fish SBF Fish Man SBF Fish Res (active observers) Anglers (later phase) Subsistence fishermen (later phase) Nature Cons NGO? CBA-Fish Nature Cons NGO Organized professional fishermen B Anglers Local project on fisheries tourism Subsistence fishermen SBF Fish Man Laura Píriz, Swedish Board of Fisheries 8

9 Co-management is about PROCESSES PRODUCTS TYPE OF DECISSIONS SO FAR 1-level CONSTITUTIONAL : WHO, when & how 2-level 3-level COLLECTIVE : POLICY; MANAGMENT PLANS; ALLOCATION RULES OPERATIVE : HOW TO GO ABOUT PRACTICALLY Laura Píriz, Swedish Board of Fisheries 9

10 SFI-Gotland Defined area: Coastal waters around the island Defined resource/fisheries: All local non-quota stocks State of the resource: Good Active resource users: Anglers, subsistence fishers & professional fishermen Prior organizational experiences: Yes, but very poor Phases of co-management: Planning / Pre-implementation External factors affecting the process: EU-rules and closed area discouraging professional fish. Degree of co-management: Information, consultation / cooperation & advisory role Arena for resource use conflicts: Yes, anglers & subsistence fishers Project professionalism: No Local political support: No Financial support: Poor Laura Píriz, Swedish Board of Fisheries 10

11 SFI- Gotland Processes Document with goals and means Organization of subsistence fishers Membership in the Baltic Rac Understanding that the group will not be able to change the decision on prohibition of drift nets. Integration of local knowledge Improved understanding & Conflict resolution between anglers & subsistence fisher Products Local adaptation of rules for temporal closing during spawning of pike, per and with fish Working plan & application for funds Join Press release about the goals Ongoing activities Cooperative collection of information about spawning areas Design of a system to collect data from all categories of fisheries Proposal for limiting weekly capture in recreational fisheries Alternative Management Strategies in sight? Restoration of old spawning areas Catch reporting system for all resource users Output regulation for recreational fisheries Management plan for turbot Laura Píriz, Swedish Board of Fisheries 11

12 SFI-Northern Bohuslän Defined area : 2 municipalities out to 4 nautical miles Defined resource/fisheries: Coastal commercial fisheries with focus on shellfish State of the resource: Stable for shellfish, recovering for demersal fish Active resource users: Local professional fishermen Prior organizational experiences: Yes, successful Phases of co-management: Pre-implementation /implementation External factors affecting the process: Yes, a marine national park; EU/CFP-principles Degree of co-management: Information, consultation, cooperation, joint action, advisory role Arena for resource use conflicts: To some extent Project professionalism: Yes Local political support: Very high Financial support: Yes Laura Píriz, Swedish Board of Fisheries 12

13 SFI-Northern Bohuslän Processes Improved understanding CBA & fishermen Scientists & fishermen Coastal guards & fishermen Central & municipal authorities Agreement between SBF & SEPA & CBA on comanagement of fisheries within the Marine Park Products Fishermen's knowledge on the ecology of the area increased Documentation organizer and Check lists for self control Adjusted of gear Ongoing activities Training Common vision and a management plan Market assessment and strategy Genetic structure of prawn stocks Seabed charts with the positioning of Natura 2000 sites Any alternative management strategy in sight? Selective gear Visualized information to all fishermen operating in the area Product Labeling (eco/co-management) Indirect exclusion based on education and selective gear Self control Laura Píriz, Swedish Board of Fisheries 13

14 Defined area : One province and the entire Kattegatt SFI-Halland Defined resource/fisheries: All commercial fisheries State of the resource: Critical for demersal fish, stable for other species Active resource users: Local professional fishermen Prior organizational experiences: Yes, small Phases of co-management: Planning / pre implementation External factors affecting the process: Yes, European & National rules Degree of co-management: Information, consultation, cooperation, joint action Arena for resource use conflicts: To some extent Project professionalism: Yes Local political support: High Financial support: Partial Laura Píriz, Swedish Board of Fisheries 14

15 SFI- Halland Processes Improved understanding Professional fishermen & FA Scientists & professional fishermen Conflict resolution Between local fishermen Vertical co-management interaction North Sea RAC - Kattegatt/Skagerrak working group Products Discussion on criteria for effort management. Some elements have been incorporated in the SBF memos. Working plan & application for funds Ongoing activities Cooperative research on effort management Alternative Management Strategies in view Days at sea Marketing of fishing products together with local farmers Laura Píriz, Swedish Board of Fisheries 15

16 Co-management at different scales/levels NORTHSEA-RAC ALL FISHERMEN HAVING FISHING RIGHTS AND WHO WANT TO FISH IN KATTEGATT FIXED NUMBER OF DAYS / MONTH PROTECT YOUNG FISH THROUGH REAL TIME STOPS SFI-HALLANDS FISHERMEN ALL FISHERMEN HAVING HISTORICAL FISHING RECORDS IN KATTEGATT WITH PRIORITY TO THOSE WHO HAVE MORE THAN 30 DAYS PER YEAR FIXED NUMBER OF HOURS / MONTH PROTECT YOUNG FISH THROUGH OBLIGATORY BACOMA-TRAWL ( mm) WEEKEND STOP COD FISHERIES STOP DURING SUMMER Making use of FIFG for funding In Nov 2004 SBF applied for funding from EU-FIFG. The funds were used to support a planning phase and allocated to the pilot initiatives / groups. During 2005 The value of the participation of SBF was estimated and used as co-funding to apply for the implementation phase. (problems) In Jan 2006 In Sep 2006 SBF applied for funding from EU-FIFG. The funds were used to support a planning phase and allocated to the pilot initiatives / groups. SBF applied for preparation of formalization phase. Laura Píriz, Swedish Board of Fisheries 16

17 Preliminary Conclusions Co-management takes time and evolves as a problem solving process. The degree of co-management varies with the problems and tasks and can not be captured by the conventional typologies. The State acting in co-management is not a monolithic and organized block nor are the fishers organizations. There is a lack of co-management incentives in the overarching framework. The European ruling principles are a barrier to comanagement. There is a lack of information and interaction between the comanagement arrangements that work at the various levels. The issue of vertical institutional interplay within co-management arrangements is also a critical issue. The government authorities should play a role there. Preliminary Conclusions Each case is unique. All original applications have been transformed by the steering committees. New themes and focus area have been negotiated. The negotiation redirects towards resource conservation. The professional fishermen engage actively when they see clear benefits. A few concrete activities and a goof mix of development and conservation are necessary to speed up the processes. The larger the number of users groups and stakeholders the more likely it is that the development of alternative strategies for resource allocation within commercial fisheries will be blocked. This is an issue that the professional fishermen apparently do not want to share authority about. Project leaders or similar agents seems to be needed. NGOs are not active. Laura Píriz, Swedish Board of Fisheries 17

18 What can the role of NGOs be? Remain the MS about their and the EU policies Be present in the co-management/axis 4 groups Organization capacity (who and how) Mobilization of non-organized groups Mobilize national funds Support with the application EU-funds Concretize the sustainable fisheries scenario by elaborating on a vision for the area Find the links between development & conservation Secretariat function Support with expertise (studies, appraisals, mapping of local knowledge, communication strategies) Capacity building - Best practices Link between the various co-management levels (carriers of information up and down the vertical line) Carriers of information up and down the vertical line of the Institutional Interplay UN & Conventions EU/CFP Policy/mandatory Policy/regulatory Advisory Co management Co management Co management RAC National Authorities LOCAL Policy/regulatory Laura Píriz, Swedish Board of Fisheries 18