Governance and management subsystems model

As discussed by Kotchen and Young (2007) models and methods are needed that are capable of providing an understanding and insights into coupled ecosystems and human systems, and their interactions and drivers. It is also important to consider the role of governance and management systems as institutional filters, mediating between human system activities and ecosystems. Garcia and Charles (2008) argue fishery systems are a network of subsystems and it is the configuration of the ecosystem and human system dimensions and components, and the interconnecting processes and fluxes of energy and information that are responsible for the systems characteristics, performance, resilience and sustainability. All fishery systems are part of higher level ecosystems and human systems, and are difficult to understand and forecast, and this is a complicating factor for governance and management. In theory, managing human activities (the principle objective of fisheries management) are more controllable, providing adequate institutions are in place, but social behaviour remains a complex source of uncertainty. A systems representation requires decisions regarding external and internal system boundaries (scope); components (structure), scales (grain), and linkages (functions) between components. With a more comprehensive representation of a fisheries system, the number of linkages is likely to increase exponentially. Simple fishery models have usually been assumed to be generally applicable. Although more sophisticated models are required to address complex questions, these may have limited application across fisheries. Integration within fisheries should be understood as a process of developing or enhancing the interface between all the components.

On the basis of the preceding discussions (and as discussed in detail by the following authors Charles (2001); Folke et al. (2000); Westley et al. (2002); Garcia and Charles (2007). The governance and management subsystems of the model, have been further developed as per Figure 4.7 below. A set of governance (political, policy and planning, legal) and management (strategic and operational) frameworks, was also developed, which underpin the governance and management model. These provide an

understanding of the respective roles and responsibilities of governance and management as were presented in section 4.2.2 in tables 4.2.2 a, b, c, d above. The governance and management subsystems highlight the multi-level jurisdictional authority and multi-level participatory decision-making forums; and multiple

institutions and stakeholders, which operate at a range of different spatial and temporal scales. The governance and management dimensions have an inferred internal

hierarchy, in terms of each level setting the requirements and parameters for subsequent levels from global to local. However, in a well designed system, opportunities for management feedback and identifying issues for governances are captured within the system, thus providing top down and bottom up mechanisms for input into governance and management decision-making forums at all levels. The governance and

management dynamics within each dimension, the relationships and the

interdependencies between them, and the different scales at which they operate, requires mechanisms for co-ordination, co-operation and collaboration; and high level

4.8 Summary

The changing world view in response to the oceans and fisheries issues, has necessitated a different approach to governance and management arrangements at international, regional, national and local levels. Changing environmental, economic and social conditions will also require continued innovation by governance and management in response to new issues. Human activities may impact ecosystems, which in turn may respond in unexpected ways, producing surprises and undesirable outcomes for human systems. Fisheries provide a variety of economic and social benefits. The dynamic nature within and between ecosystems and human systems need to be considered by governance and management, and sustainability depends on understanding how human systems and their institutions interact. The complex relationships and responses and inherent uncertainty within and between ecosystems and human systems requires an integrated response from governance and management in balancing the conservation and use of marine resources.

The international instruments, agreements and the introduction of EBFM has resulted in a multi-level and a multi-institutional and stakeholder governance and management decision-making framework. At the international level issues relating to the high seas require co-operation and co-ordination between nations. At the regional level these relate to issues not contained with nation states EEZs, such as those of straddling stocks and highly migratory species, which may be managed through Regional Fisheries Management Organisations. At the national level each nation is subject to different environmental, economic and social conditions and issues. As discussed, nation states will be required to respond to international and regional imperatives as well as national concerns. Nationally, many of the principal issues for the marine environment are related to coastal development, with major impacts occurring at the land and marine interface. National governance and management arrangements will need to deal with these issues and with the direct and indirect impacts of fishing to maintain sustainable fisheries, as well as considering the economic and social factors and drivers.

Governance institutions are responsible for developing policy and initiatives and management actions in response to the issues and provide a framework for stakeholder interactions. The structure and function of governance and management institutions are

also complex systems as they exhibit dynamic relationships and interlinkages within and between them and operate at different spatial and temporal scales. These

dimensions are multi-faceted in terms of their components, characteristics and drivers. All these dimensions need to be considered in meeting societal goals and objectives and avoiding governance and management system failures. Despite the inherent complexity and uncertainty an integrated systems approach can still be undertaken which supports the development of effective governance and management arrangements, and will also facilitate the implementation of EBFM.

The governance and management subsystems model as developed in this chapter provided an understanding of the changing governance and management roles and responsibilities under EBFM principles, together with the development of multi-level jurisdictional authority and participatory decision-making forums; and the multiple institutions and stakeholders involved in oceans and fisheries governance and

management. Governance and management institutions are responsible for developing integrated policy initiatives, and comprehensive management responses to

environmental and human issues. These governance and management institutions are also complex systems which exhibit dynamic relationships and interlinkages that operate at different spatial and temporal scales; and are multi-faceted in terms of their components, characteristics and drivers. Under these conditions issues of institutional interplay and fit may occur. All these dimension need to be considered in meeting societal goals and objectives and avoiding governance and management system failures. Despite the inherent complexity and uncertainty an integrated systems approach can be undertaken which supports the development of effective governance and management arrangements, and facilitate adaptive management approaches.

According to (Thorne-Miller and Catena, 1991) there are three important aspects to be considered when moving towards meeting sustainability principles and objectives. First, international and national policies, laws and regulations need to be adequate, second, once adequate policies are in place these need to be effectively implemented (both these have been considered here). Third, an effective and efficient management framework is required for implementation (Thorne-Miller and Catena, 1991 p. 127). This is the subject of the Chapter 5, which considers the implementation of strategic and operational management for oceans and fisheries under EBFM principles.

CHAPTER 5: IMPLEMENTATION OF EBFM: FISHERIES