A realist evaluation of the individual transferable quota system used in Finnish herring fisheries

Rights-based management, such as the individual transferable quota (ITQ) system, is a popular approach for pursuing economic, social, and environmental sustainability in fisheries, with a variety of outcomes. This variety appears to be explained by the contextual differences between the targeted fisheries. By acknowledging that each fishery is unique, we need to apply holistic evaluation methods to understand the mechanisms causing different outcomes in fisheries interventions. Here, we apply the realist evaluation (RE) approach to evaluate the ITQ system implemented in the Finnish herring fishery. This study serves two purposes: () it outlines the realized outcomes of the Finnish management system in relation to the expected outcomes and () it introduces the RE method to the field of fisheries management. Measured in economic terms, the results indicate the new management system to be a success, although the benefits are more prominent for large-scale fishers. The context did not allow small-scale fishers to reap the theorized benefits of the ITQ system, leading to a somewhat more uncertain future for the sector. The RE approach proved to be a useful tool, well-suited to the evaluation of fisheries management systems.Peer reviewe

Growing into interdisciplinarity: how to converge biology, economics and social science in fisheries research?

It has been acknowledged that natural sciences alone cannot provide an adequate basis for the management of complex environmental problems. The scientific knowledge base has to be expanded in a more holistic direction by incorporating social and economic issues. As well, the multifaceted knowledge has to be summarized in a form that can support science-based decision making. This is, however, difficult. Interdisciplinary skills, practices, and methodologies are needed that enable the integration of knowledge from conceptually different disciplines. Through a focus on our research process, we analyzed how and what kind of interdisciplinarity between natural scientists, environmental economists, and social scientists grew from the need to better understand the complexity and uncertainty inherent to the Baltic salmon fisheries, and how divergent knowledge was integrated in a form that can support science-based decision making. The empirical findings suggest that interdisciplinarity is an extensive learning process that takes place on three levels: between individuals, between disciplines, and between types of knowledge. Such a learning process is facilitated by agreeing to a methodological epoch and by formulating a global question at the outset of a process.v2012o

Food security and safety in fisheries governance : A case study on Baltic herring

One of the objectives of the EU Common Fisheries Policy (CFP) is to increase the contribution of fisheries to fish food availability and self-sufficiency. Still, the use of catch is often a secondary concern in fisheries governance and management – or not a concern at all – while the focus is on harvesting. This paper examines how the use of forage fish for human consumption can be increased within the limits of sustainability, using Baltic herring as a case study. Baltic herring contains high levels of dioxins and the human consumption is very low: the catches are mostly used for industrial purposes. The paper uses a participatory backcasting exercise to define a desirable future vision for the use of Baltic herring catch and to develop pathways of actor-specific governance actions to increase the use of the fish as a safe-to-eat food. The results reveal that increasing the contribution of forage fish, such as Baltic herring, to food security entails a paradigm shift in fisheries governance that involves 1) inclusion of well-defined objectives for catch use in the EU CFP and the related regional multiannual plans, 2) broadening the scope of the MSY-driven governance and management to one that addresses catch use, and 3) proactive catch use governance.Peer reviewe

A Finnish regional non-binding MSP approach : What are the consequences for integrating Blue Growth and GES?

The EU Maritime Spatial Planning Directive (MSPD) requires the member states (MS) to pursue Blue Growth while ensuring good environmental status (GES) of sea areas. An ecosystem-based approach (EBA) should be used for the integration of the aims. However, the MSPD does not specify how the MS should arrange their MSP governance, which has led to a variety of governance arrangements and solutions in addressing the aims. We analysed the implementation of the MSPD in Finland, to identify conditions that may enable or constrain the integration of Blue Growth and GES in the framework of EBA. MSP in Finland is an expert-driven regionalized approach with a legally non-binding status. The results suggest that this MSP framework supports the implementation of EBA in MSP. Yet, unpredictability induced by the non-binding status of MSP, ambiguity of the aims of MSP and of the concept of EBA, and the need to pursue economic viability in the coastal municipalities may threaten the consistency of MSP in both spatial and temporal terms. Developing MSP towards a future-oriented adaptive and collaborative approach striving for social learning could improve the legitimacy of MSP and its capacity to combine Blue Growth and GES. The analysis indicates, that in the delivery of successful MSP adhering to the principles of EBA should permeate all levels of governance. The study turns attention to the legal status of MSP as a binding or non-binding planning instrument and the role the legal status plays in facilitating or constraining predictability and adaptability required in MSP.Peer reviewe

Justification theory for the analysis of the socio-cultural value of fish and fisheries : The case of Baltic salmon

The ecosystem approach to fisheries management requires ecosystems to be perceived in a holistic way, including the dynamics not only within an ecosystem but also between the ecosystem and society. This implies that people involved in decision-making processes should understand why fish and fisheries are important for society, that is, be aware of the socio-cultural values that people associate with fisheries. In this paper, the justification theory of Boltanski and Thevenot is applied to material collected through a literature review to identify sociocultural values relating to Baltic salmon, and the potential of the approach for fisheries governance is discussed. The analysis demonstrates that fish resources can have multiple meanings to society. Justification theory is found useful for identifying socio-cultural values related to fisheries, since it suggests shifting attention from opposing interests to the common good. Agreeing on the common good is crucial for the legitimacy of governance. However, because the common good can be defined in multiple ways, these definitions have to be made transparent through empirical analysis so that they can be further deliberated, evaluated and agreed upon by governors, stakeholders and others involved.Peer reviewe

The effects of climate change on Baltic salmon : Framing the problem in collaboration with expert stakeholders

In the Baltic Sea region, salmon are valued for the ecological, economic, and cultural benefits they provide. However, these fish are threatened due to historical overfishing, disease, and reduced access to spawning rivers. Climate change may pose another challenge for salmon management. Therefore, we conducted a problem-framing study to explore the effects climate change may have on salmon and the socio-ecological system they are embedded within. Addressing this emerging issue will require the cooperation of diverse stakeholders and the integration of their knowledge and values in a contentious management context. Therefore, we conducted this problem framing as a participatory process with stakeholders, whose mental models and questionnaire responses form the basis of this study. By framing the climate change problem in this way, we aim to provide a holistic understanding of the problem and incorporate stakeholder perspectives into the management process from an early stage to better address their concerns and establish common ground. We conclude that considering climate change is relevant for Baltic salmon management, although it may not be the most pressing threat facing these fish. Stakeholders disagree about whether climate change will harm or benefit salmon, when it will become a relevant issue in the Baltic context, and whether or not management efforts can mitigate any negative impacts climate change may have on salmon and their fishery. Nevertheless, by synthesizing the stakeholders' influence diagrams, we found 15 themes exemplifying: (1) how climate change may affect salmon, (2) goals for salmon management considering climate change, and (3) strategies for achieving those goals. Further, the stakeholders tended to focus on the riverine environment and the salmon life stages occurring therein, potentially indicating the perceived vulnerability of these life stages to climate change. Interestingly, however, the stakeholders tended to focus on traditional fishery management measures, like catch quotas, to meet their goals for these fish considering climate change. Further, social variables, like “politics,” “international cooperation,” and “employment” comprised a large proportion of the stakeholders' diagrams, demonstrating the importance of these factors for salmon management.Peer reviewe

Spatial aspects of the dioxin risk formation in the Baltic Sea: A systematic review

Dioxins have been an inconvenience to the Baltic Sea ecosystem for decades. Although the concentrations in the environment and biota have continuously decreased, dioxins still pose a risk to human health. The risk and its formation vary in different parts of the Baltic Sea, due to variability in the environmental and societal factors affecting it. This paper presents a systematic literature review and knowledge synthesis about the regional dioxin risk formation in four sub-areas of the Baltic Sea and evaluates, whether systemic approach changes our thinking about the risk and its effective management. We studied the dioxin flux from atmospheric deposition to the Baltic Sea food webs, accumulation to two commercially and culturally important fish species, Baltic herring (Clupea harengus membras) and Baltic salmon (Salmo salar), and further to risk group members of four Baltic countries. Based on 46 studies, we identified 20 quantifiable variables and indexed them for commensurable regional comparison. Spatial differences in dioxin pollution, environmental conditions, food web dynamics, and the following dioxin concentrations in herring and salmon, together with fishing and fish consumption, affect how the final health risk builds up. In the southern Baltic Sea, atmospheric pollution levels are relatively high and environmental processes to decrease bioavailability of dioxins unfavorable, but the growth is fast, which curb the bioaccumu-lation of dioxins in the biota. In the North, long-range atmospheric pollution is minor compared to South, but the local pollution and slower growth leads to higher bioaccumulation rates. However, based on our results, the most remarkable differences in the dioxin risk formation between the areas arise from the social sphere: the emissions, origin of national catches, and cultural differences in fish consumption. The article suggests that acknowledging spatial characteristics of socio-ecological systems that generate environmental risks may aid to direct local focus in risk management.Peer reviewe

Risk frames and multiple ways of knowing : Coping with ambiguity in oil spill risk governance in the Norwegian Barents Sea

The opening of new areas for offshore drilling in the Arctic is highly controversial. As ice cover in the region is melting at an alarming rate, new areas have been opened for petroleum industry in the Norwegian Barents Sea. Our qualitative analysis examines risks related to the petroleum operations in the newly opened areas and provides insight into the complex and socially constructed nature of the risks. With the use of visual influence diagram- based mental modelling approach, we demonstrate the multiple ways in which the risks are understood and defined. We also analyse the type of knowledge that the risk frames are based on. The influence diagrams present the risk frames in a clear, visual, form. The study indicates that the existing governance framework fails to treat the ambiguity around oil spill risks: the current risk assessments and risk management do not reflect on the multiple ways in which the participants in this study 1) frame the problem situation, 2) how they identify different measures to manage risks, and 3) what are considered as key knowledge needs and knowledge producers by the participants. We suggest that social learning and collaborative knowledge production are needed to move towards developing shared understanding of the problem situation. Finally, we suggest that the rigorous examination and the unveiling of ambiguity may help developing deliberative risk governance measures and moving towards sustainability transformations.Peer reviewe