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Quo Vadis Common Fisheries Policy?

1. Aufl.

von: Ernesto Penas Lado
193,99 €
Verlag:	Wiley-Blackwell
Format:	PDF
Veröffentl.:	16.09.2019
ISBN/EAN:	9781119576877
Sprache:	englisch
Anzahl Seiten:	392

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Titelbeschreibung

Offers a guide and provides an analysis of how a public European fisheries policy should be evaluated, implemented, and reformed Quo Vadis Common Fisheries Policy? is an essential book that provides an authoritative guide to the future challenges that face the public European fisheries policy. Written by a noted expert with 30 years’ experience in fisheries policies, the book provides the information needed to analyze how a public EU policy should be evaluated, implemented, and reformed. The book examines the difficulties of implementing the new policy including the application of the objectives of the 2013 policy reform. The author explores the myriad challenges that face the new policy due to global warming, pollution, and other global drivers. The book compares the new policy with other fisheries policy, particularly with the United States fisheries policy under the Magnusson-Stevens Act. The book offers an opportunity to address and discuss the challenges and obstacles that are not currently in the public domain. This important book: <ul> <li>Provides a unique view from a noted expert and former policy insider</li> <li>Offers a critical analysis of a public EU policy from a pro-European standpoint.</li> <li>Gives a foundational resource to aid in the debate on the future of the Common Fisheries Policy</li> <li>Includes topics that go beyond EU’s policy and have implications for fisheries’ management around the world</li> </ul> Written for administrations and stakeholders in the European and international fishing industry, Quo Vadis Common Fisheries Policy? addresses the challenges of EU’s new fisheries policy and offers a comparison of the US fisheries policy. The book helps foster much-needed debate about this topic.

Inhaltsverzeichnis

Preface xiii Acknowledgments xv Disclaimer xvii 1 The common fisheries policy: stability or change? 1 Introduction: fisheries, a conservative world 1 A distributional policy 1 Policy change vs. policy stability 2 Why do policies change? 4 Legal change vs. policy change 4 Does the CFP change too much or too little? 6 Policy rigidity vs. policy flexibility: why is the CFP so rigid? 7 Policy implementation and policy change: the challenge of implementing the 2013 reform 8 The challenges of implementation 9 The CFP’s legendary bad press 9 The reformed CFP: success or failure? 10 The notion of “policy success” in fisheries management 10 Policy results: how good are they? 13 Improving reporting of policy performance 18 If the CFP is not so bad, why advocating policy change? 22 References 23 2 The objectives of the CFP 25 Introduction 25 The common fisheries policy in the Treaty 26 Fisheries policy: a multi-objective policy 26 The objectives in Article 39 of the Treaty 26 Other legal principles applicable to the CFP 27 Policy objectives in other countries 28 The United States 29 Australia 30 New Zealand 31 Norway 31 The case for full exploitation of fishery resources 32 Preventing overfishing or fully exploiting? 32 Is under-exploitation positive? 32 Is under-exploitation a realistic scenario in the CFP? 33 The example of the US 33 Under-exploitation in the EU? 34 Under-exploitation vs. over-exploitation 36 The consequences of under-exploitation 37 The effects on other marine areas 37 The effects on land: is livestock production better than fishing? 37 The public debate 38 Are the fishery objectives of the new CFP too rigid? 39 The lessons from the US system 39 Socio-economic objectives vs. biological delivery: should the policy establish specific socio-economic targets? 40 References 41 3 Implementing maximum sustainable yield 43 What is maximum sustainable yield? 43 Defining MSY 43 MSY in the reformed CFP 44 MSY in international law 44 MSY and the Treaty 45 Is maximum economic yield a better option? 45 An area around MSY 46 MSY as biomass or as fishing mortality? 47 Introduction 47 Bmsy as an “aspirational objective” 49 The interpretation by environmental NGOs 50 Single stock objectives in the marine ecosystems: can all stocks be “above Bmsy” in mixed fisheries? 50 Bmsy, an elusive parameter 51 The US system 51 Estimating Fmsy 52 Single-stock Fmsy vs. ecosystem-based Fmsy 52 Proxies for data-poor fisheries 52 Alternative approaches: escapement strategies 53 Fmsy as a target or as a limit? 53 The notion of risk in fishery management 54 The US case 55 Fmsy: a point value or a range? 55 Background 55 The case for fishing mortality ranges 56 F ranges: handle with care. Are they precautionary? 58 The on-going experience: MSY in multiannual management plans 58 F ranges and the choke species problem: the Baltic precedent 58 The consolidation of F ranges 59 The safeguards: biomass thresholds 60 Should all plans reproduce that precedent? 60 Fmsy for all stocks: what does it mean? 61 Data-poor and secondary stocks: manage them to MSY? 61 Introduction 61 Which stocks to manage? 62 Are the EU-managed stocks the right ones? 63 Problem stocks 66 References 67 4 The challenge of mixed fisheries 71 Mixed fisheries in the new CFP 71 Can MSY be achieved for all stocks in mixed fisheries? 71 Mixed fisheries and choke species 72 Choke species: some experience outside the EU 72 Choke species under the new CFP 73 Alternative management approaches for mixed fisheries 75 Multispecies approaches 75 What potential for multispecies models? 75 Pretty good yield 76 The Fcube model 77 Multi-stock reference points 78 Managing stock aggregates? 78 How much can we sacrifice weak stocks? 79 An ecological cap on TACs? 80 Trophic models 81 Multispecies models and trade-offs: is multispecies management compatible with relative stability? 82 Is multispecies management compatible with the objectives of the CFP? 83 Can associated species in mixed fisheries be dissociated? 84 The US experience in dissociating stocks 84 How to dissociate stocks in mixed fisheries in the EU? 85 References 88 5 Achieving policy objectives in Mediterranean fisheries 91 MSY and Mediterranean fisheries 91 Time to catch-up 91 The status of Mediterranean fisheries 92 Sustainable overfishing? 93 Economic performance 94 The Mediterranean specificity 94 Global warming: a game-changer 95 Can MSY be achieved by 2020 for all stocks in Mediterranean fisheries? 96 The point of departure 96 What stocks to manage in the Mediterranean? 97 A focus on EU stocks 98 Avoiding “cut and paste” approaches 98 A fishery approach? 99 Streamlining scientific advice 100 The need for a “client” for the scientific community 100 Data poor stocks and MSY proxies 101 Revising stock boundaries 102 The CFP and GFCM 103 What instruments to use in Mediterranean fisheries? 103 Fishing effort plans 104 TACs 104 The multispecies approach: a better alternative for the Mediterranean? 105 Closed areas 105 Mesh sizes 106 The transition: a buy-out scheme for Mediterranean fisheries 107 References 108 6 The landing obligation 111 The CFP and the problem of discarding 111 Discarding in the CFP: how much? Why? 111 The 2013 policy on discards 112 A critique of the landing obligation of 2013 113 Discards and direct human consumption 114 What other countries do on discarding 115 The US case 115 Norway 116 Iceland 117 The effects of a non-discard policy 117 Biological effects 117 Economic effects 118 Choke species and the “perfect storm” of 2019 120 Relative stability as a contributor to choke species 120 Quota swaps as a possible solution 121 How efficient is the quota swap system? 121 Are quota swaps increasing to facilitate the discard ban? 122 Can quota swaps be enhanced? 123 The flexibility mechanisms 124 The de minimis allowance 124 The survival exemption 124 The cross-reporting of catches 125 Ex-ante and ex-post quota adjustments: banking and borrowing 125 Other possible elements of flexibility 126 TAC uplifts 126 Reducing minimum conservation reference sizes? 127 Working on the fringes of relative stability? 127 Other possible mechanisms 128 Implementing the landing obligation in practice 129 By-catch avoidance: mitigation 129 Controlling the landing obligation 131 What to do with unwanted fish? 134 The need for monitoring 135 Is the landing obligation economically viable? 136 References 137 7 Beyond single-stock TACs: the other instruments of the CFP 141 Management by single-stock TACs 141 The advantages of TAC management 141 The limits of TACs as an instrument 141 Other instruments available in the CFP 142 Effort management 142 Is effort a good management instrument? 143 The Faroese system as an example 143 The experience of effort management in the CFP 144 Effort management and technological creep 147 The potential for a (different) effort management in the CFP 148 Technical conservation measures 149 The objectives of TCM 149 The difficulty in increasing selectivity 150 Technical measures in the new CFP 151 Mesh sizes 152 Closed areas/seasons 152 Minimum conservation reference sizes 155 Technical measures and the landing obligation 157 References 158 8 Fisheries and the environment 161 The CFP and environmental policy 161 Introduction 161 Incorporating environmental concerns into the CFP 162 Overlapping legislation 163 The dichotomy between fisheries management and environmental protection: the case of sharks 168 Sharks: protect or manage? 168 Shark finning 169 Some ideas on management 170 The effects of fishing on the environment 171 Fishing: the evil of the seas? 171 Fishing down the food web? 173 Does sustainable fishing increase productivity? 173 Preserving marine biodiversity 174 How to measure biodiversity: existing indicators 174 Protecting biodiversity on land as a comparison 175 Marine Protected Areas: the ultimate instrument? 177 How to evaluate the preservation of biodiversity: the notion of ecosystem services 178 The ecosystem approach 179 The ecosystem approach and the CFP 180 Ecosystem-based fisheries management 181 A test case: managing forage fish 182 What future for ecosystem-based management in the CFP? 183 A provocative idea: balanced harvest 184 Is selective fishing always a good idea? 184 The notion of “balanced harvest” 185 Is balanced harvest applicable in practice? 186 References 186 9 Fisheries governance and the CFP 191 The evolution of governance under the CFP 191 Introduction 191 The balance between discipline and flexibility 192 Policy flexibility: the example of the United States 193 Can the CFP be more flexible? The notion of “level playing field” in the CFP 193 The new paradigm of the CFP: regionalization 194 The example of the US: a regionalized fisheries policy 194 Regionalization of the CFP: the experience of discard plans 195 The role of stakeholder bodies 196 The example of the US: what can we learn from the US Regional Councils? 196 The EU’s Advisory Councils’ structure and composition: are they equipped to do their job? 199 A note on consensus: is this the best method? 200 Are the ACs worth the investment? 200 The role of Producer Organizations 201 Environmental NGOs and the CFP 202 NGOs and legitimacy: funding 203 NGOs and their influence 204 NGOs and Advisory Councils 205 Is cooperation between industry and NGOs possible? 206 The role of science 206 The new CFP and fisheries science 206 Improving scientific advice 207 Data and science 208 Streamlining the evaluation process: stock prioritization 209 Science and the management system 210 Economic advice 213 Science in the information age 214 The role of consumers: certification systems 215 The case of MSC 215 The dolphin safe certification 216 Other certification systems 216 Public or private labels? 217 What to certify in the future? 218 Governance in the reformed CFP: the example of multiannual plans 218 Background 219 Multiannual plans and the role of the institutions 219 How has co-decision fared for the CFP? 220 Addressing variability and uncertainty 222 Communicating the uncertainty 224 Spatial dynamics 224 A governance system that quickly incorporates variability 225 How to make the CFP more adaptive to variability and uncertainty? 226 Policy monitoring: from description to causality 227 Policy complexity: can the CFP be simplified? 228 Is policy complexity inevitable? 228 The complex political/geographical/jurisdictional context 229 The evolution of the decision-making workflow in the CFP 229 The example of the US 230 Can regionalization reduce complexity? 231 Can guidelines replace regulations in the CFP? 231 Changing the paradigm: from prescriptive to collaborative governance 232 Results-based management 232 Does the CFP have the structures for collaborative management? 232 Creating trust 233 References 234 10 The CFP and international fisheries 237 The external dimension as an essential part of the CFP 237 Introduction 237 The EU as the crucial actor in international fisheries governance 238 The external dimension of the CFP and international governance 239 Marine Protected Areas: the miracle instrument? 240 MPAs: what objectives? 241 The Aichi targets 242 The notion of “ocean grabbing” 243 The ultimate MPA: a ban on high seas fishing? 244 High seas fishing: economic nonsense? 245 A ban on high seas trawling? 245 International governance and developing countries 246 International fisheries governance: a rich country’s agenda? 246 Capacity building 247 Fight against poverty 247 Access to fishing rights 248 Large-scale MPAs and developing countries 249 Global fleet capacity 250 A problem of global governance 250 The Kobe process 250 A key factor: the allocation of fishing rights 251 Fisheries enforcement at global level: fighting against illegal fishing 252 Introduction 252 The success of the EU IUU policy 253 A multilateral IUU policy 253 What future for the fight against IUU fishing? 254 The improvement of RFMOs 255 Why RFMOs are so important 255 The necessary improvements 255 NEAFC and the “coastal states arrangement” 259 The changes in the traditional status quo of the oceans 259 The increasing privatization of the world’s oceans 260 The emergent fishing nations 260 References 261 11 The missing elements of the 2013 Policy reform 265 What the 2013 CFP reform missed 265 The issues beyond the “big four” 265 Rights-based management 265 Is rights-based management good or bad? 266 Why did TFCs fail in the 2013 reform? 267 The experience of third countries 268 The experience of some EU Member States 271 Rights-based management and discards 272 Is there a market of fishing rights in the EU? 272 Small-scale fisheries: no specific policy 273 Defining small-scale fishing: more difficult than it seems 274 What small-scale and large-scale can provide 275 The comparative impacts of small-scale vs. large-scale fishing 275 What can we learn from aboriginal fishing rights? 276 The fisheries control system 277 The dichotomy between EU policy and national control 277 Harmonization of sanctions? 278 Enhanced powers for EFCA? 279 The control of the landing obligation: a test case 279 The management system: is cost-recovery possible in the CFP? 280 Is self-control an option? 281 Fleet policy: does it still have any sense today? 282 Background 282 Fleet policy in the 2013 reform 282 The US case 283 Are capacity ceilings limiting anything? 283 Is there a case for fleet policy? 284 The EMFF: an instrument to accompany the reform? 285 Some positives . . . 285 . . . and some negatives 285 The structural measures of the US as a point for reflection 286 References 287 12 The global context: emerging challenges 289 The status of the world’s fishery resources 289 The Pauly/Hilborn controversy 289 So, who is right and who is wrong? 291 The case of the EU 293 Does fisheries management work? 294 The “perfect protein”: can the world afford to under-exploit its fishing opportunities? 295 Hunger and poverty: fish consumption and the global demand for fish 295 Are the land-based alternatives better? Protein from livestock 295 A question of equity: the notion of “leakage” 296 Fisheries: a key component of future diets 297 Aquaculture: the seafood of the future? 298 Aquaculture and capture fisheries: are they compatible? 298 Is aquaculture ecologically sustainable? 299 Fisheries and employment 302 Employment at sea 302 The property of the means of production: who owns the fishing rights? Does it matter? 304 Why the structure of property matters 304 What possible effects on management? 305 Climate change and fisheries management 305 Global warming and the oceans 306 Global warming and food production 307 The effects of climate change on fisheries and aquaculture 308 How to address the problem: the case of Alaska 309 Marine pollution: the example of micro-plastics and marine resources 310 Distribution and incorporation to the food chain 310 The effects of micro-plastics on consumers 311 What to do? 311 Fisheries in the information age 312 The influence of the information society on policy making 312 The bad image of industrial fishing 313 References 314 13 Adapting the CFP to emerging challenges 317 Adapting the CFP beyond reform 317 Emerging challenges and the value of long-term strategic thinking 317 Adapting the CFP to climate change 318 The evidence of climate change in EU fisheries 318 A case study: Atlantic cod 320 The consequences of climate change in the CFP 320 The US example 321 A strategic plan to adapt the CFP to climate change 321 More food from the sea 323 Seafood vs. land-based food 324 Is the EU producing enough food from the oceans? 324 Some background 324 Are there untapped fish resources? 326 Exploiting the lower trophic levels 327 Improving quota consumption 327 Changing the policy paradigm: a policy based on exploiting the surplus of the marine ecosystem, not individual stocks 327 Developing new aquaculture practice 328 The integration of fisheries policy into a wider policy context 328 The wider notion of fisheries management 328 The relationship between fisheries and other economic sectors 329 The challenge of science vs. social influence 329 Bridging the chasm: a “new deal” between the fishing industry and environmental NGOs? 330 Recreational fisheries in Europe 331 The US case 332 References 333 14 Some ideas for the next CFP reform 335 A vision of the future CFP 335 The 2009 vision: is it still valid today? 335 New elements of a vision of the future CFP 335 New policy objectives 336 An improved governance system 337 A more flexible, adaptive CFP 337 A new legislative culture: concentrating on political objectives, not on micro-management 338 A new decision support framework 339 The future of regionalization 339 The notion of co-creation and the “irrational” part of decision-making 340 Creating breathing space for the ACs 340 A new structure for an enhanced role for the Advisory Councils 341 Relative stability: why it should evolve 342 Why question the CFP’s cornerstone? 342 Are individual annual quotas under relative stability biologically and economically rational? 343 An enhanced market of fishing rights among Member States 344 A European market of fishing rights? The case of milk quotas 345 Evolution through adjustment 347 A revamping of relative stability: from single-stock shares to combined shares 350 The Mediterranean: a new management paradigm 351 Should the CFP manage recreational fishing? 351 What future for the fishery structural funds? 352 An instrument to promote policy change, not to maintain the status quo 353 What structural funds for the future CFP? 353 Introducing market mechanisms in the CFP? 356 An alternative approach: RBM partial and optional 357 A specific policy for small-scale fishing? 357 A reformulated discard policy 358 New objectives 358 Accepting (while discouraging) over-quota landings 359 Do we need to change the basic regulation? 359 Policy changes not requiring legislative change 359 Policy changes requiring clarification or interpretation 360 Policy changes requiring legislative change 360 References 360 Glossary 363 Abbreviations 365 Index 367

Autorenportrait

ERNESTO PENAS LADO, is retired. He worked for nearly 30 years at the Directorate for Maritime Policy and Fisheries of the European Commission in Brussels, Belgium.

Back cover copy

Offers a guide and provides an analysis of how a public European fisheries policy should be evaluated, implemented, and reformed Quo Vadis Common Fisheries Policy? is an essential book that provides an authoritative guide to the future challenges that face the public European fisheries policy. Written by a noted expert with 30 years' experience in fisheries policies, the book provides the information needed to analyze how a public EU policy should be evaluated, implemented, and reformed. The book examines the difficulties of implementing the new policy including the application of the objectives of the 2013 policy reform. The author explores the myriad challenges that face the new policy due to global warming, pollution, and other global drivers. The book compares the new policy with other fisheries policy, particularly with the United States fisheries policy under the Magnusson-Stevens Act. The book offers an opportunity to address and discuss the challenges and obstacles that are not currently in the public domain. This important book: <ul> <li>Provides a unique view from a noted expert and former policy insider</li> <li>Offers a critical analysis of a public EU policy from a pro-European standpoint</li> <li>Gives a foundational resource to aid in the debate on the future of the Common Fisheries Policy</li> <li>Includes topics that go beyond EU's policy and have implications for fisheries' management around the world</li> </ul> Written for administrations and stakeholders in the European and international fishing industry, Quo Vadis Common Fisheries Policy? addresses the challenges of EU's new fisheries policy and offers a comparison of the US fisheries policy. The book helps foster much-needed debate about this topic.