Regional Ocean Governance Arrangements in the Wider Caribbean The Ninth University of Eastern Finland-UNEP Course on Multilateral Environmental Agreements Grenada Grand Beach Resort August Robin Mahon Centre for Resource Management and Environmental Studies (CERMES) University of the West Indies, Barbados

In this presentation The context for ocean governance in the Wider Caribbean Region (WCR) The emerging regime in the WCR Strengthening the regime The Caribbean Sea Commission (CSC) and the CSC science-policy interface

Caveats What we think is emerging What we think should emerge But may not emerge Threads CLME Project Caribbean Sea Initiative

4 Context for Caribbean ocean governance The Wider Caribbean is the most geographically and politically diverse and complex region in the world  Geopolitical  44 states  100 maritime boundaries  Cultural diversity  Size  smallest to largest  16 SIDS  Development  poorest to most wealthy Hypothetical EEZs

High dependence of livelihoods on coastal and marine goods and services Many coastal inhabitants and development Marine-based tourism Mainly rural small- scale fisheries

6 Many marine resource impacts Fisheries Most coastal resources overexploited Few instances of management Little involvement in ocean-wide large pelagics Regional large pelagics unmanaged Coral reef biodiversity Coral reefs in decline Reef biodiversity under threat Critical coastal habitat in decline CMPAs inadequate

Ship-based and land-based marine pollution - Caribbean Sea Land-based : run-off carries pollutants of all sorts Ship-based: Caribbean Sea is one of the busiest shipping regions in the world (International Maritime Organization (IMO)

8 ShrimpsFlyingfish Large pelagics ● Reef ecosystems ● ● ● ● ● ● ● ● ● ● ● ● ● ● ● ● ● ● ● ● ● ● ● ● ● ● Caribbean ocean governance issues Ocean governance issues are multi-scale level and transboundary

9 WECAFC ICCAT CARICOM Cuba Guatemala Colombia Costa Rica Mexico Honduras Nicaragua Panama Belize Jamaica Guyana Bahamas Trinidad & Tobago OECS *Anguilla**** *Netherlands Antilles *Montserrat**** Antigua & Barbuda Dominica Grenada St. Kitts & Nevis St. Lucia St. Vincent & Grenadines *British Virgin I.**** Dominican Republic Haiti Suriname *Aruba *Cayman I. *Turks & Caicos I. Barbados CARIFORUM ACS USA Brazil Japan WECAFC LAC *USVI** *Martinique*** *Guadeloupe*** Venezuela *French Guiana*** *Puerto Rico** *** in ICCAT as French Departments * Associate States of ACS Canada France Spain Portugal Morocco USSR Korea Uruguay Ghana Senegal Ivory Coast Angola Gabon Benin Cape Verde Sao Tome & Principe South Africa Bolivia El Salvador Ecuador Peru OLDE- PESCA OSPESCA **in ICCAT as USA Belize **** in ICCAT as UK Organisational complexity - overlapping and nested fisheries related organisations Caribbean ocean governance issues There are 30+ regional organisations with relevance to living marine resources

Problems related to large scale and complexity in the Wider Caribbean   Lots of technical work done   Little impact on governance   Many local, national and subregional efforts at management   Uncoordinated and disconnected at regional level   Gaps   Duplication of effort 4

Emerging ocean governance needs   Commitment to EBM/EAF   Need for intersectoral integration 4

Primarily small to medium-scale fisheries that do not generate revenues to support a regional management organization. How will ocean governance be arranged and funded in the WCR? Anguilla Grenada Jamaica Bahamas

How will ocean governance be arranged and funded in the WCR? What about tourism? Tourism is only just realising that it depends on a healthy marine environment Akumal, MexicoRoatan, Honduras

How will ocean governance be arranged and funded in the WCR? What are the options? A single commission that has the authority and mandate for ocean governance? Countries emphasise that no new bodies should be created unless absolutely necessary Many organisations already engaged Settled on a networking approach that makes the best use of existing organisations?

Interactive Approach to Governance Institutional Analysis Framework Governance assessment and strengthening requires a conceptual framework

GOVERNANCE ASSESSMENT SEQUENCE Weak or no governance Effective governance Governance processes operational? Ecosystem stressors reduced? Ecosystems improved/ protected? ORIGINAL IW APPROACH TO ASSESSING GOVERNANCE EFFECTIVENESS IN IW SYSTEMS Process indicators Pressure indicators State indicators Most effort at measurement has been here

GOVERNANCE ASSESSMENT SEQUENCE Weak or no governance Effective governance Governance processes operational? Ecosystem stressors reduced? Ecosystems improved/ protected? Human well-being improved/ assured? TWAP APPROACH TO ASSESSING GOVERNANCE EFFECTIVENESS IN IW SYSTEMS Arrangements/ architecture in place? Architecture is seen as an essential first step Socially just outcomes achieved? Stakeholders appropriately engaged? The social justice arm adds emphasis on human well- being

Governance architecture concepts   Concepts being explored and incorporated include:   Scale   Nestedness   Fit of institutions to ecosystems   Interplay of organisations   Regime complexes and network governance   Subsidiarity

DATA AND INFORM- ATION ANALYSIS AND ADVICE REVIEW AND EVALUATION IMPLEMENT- ATION DECISION MAKING This can be approached through a governance framework using the conventional policy cycle -- Like this one. A networking approach that makes the best use of existing organisations?

A multi-level policy-cycle based governance framework Diversity of policy processes as appropriate Policy cycles must be: Complete Linked laterally Linked vertically DATA AND INFORM- ATION ANALYSIS AND ADVICE REVIEW AND EVALUATION IMPLEMENT- ATION DECISION MAKING The LME governance framework

Long-term goal Fully-functional policy cycles at all appropriate levels with the appropriate vertical and lateral linkages. Framework building Can be approached incrementally with interventions specifically targeted at:  Establishing or completing policy cycles  Building or enhancing linkages Institutional complex for ocean governance in the Wider Caribbean

The Fisheries subframework – organisations already exist for key roles UNGA – CSD COFI? ACS – CSI/CSC WECAFC? CARICOM/CRFM? SICA/OSPESCA? OECS/ESDU? OECS? WECAFC FFWG? CRFM? OSPESCA? WECAFC WG? FISHERIES SUB-FRAMEWORK

Several subframeworks will be needed UNGA – CSD COFI? ACS– CSI/CSC There will be a sub-framework for each of several sectors topical areas

Strengthening Regional Governance The CLME Project components explore and build key aspects of the LME Governance Framework Large Pelagics Project. Reef Fisheries and Biodiversity Eastern Caribbean Flyingfish Guianas-Brazil Shrimp and Groundfish Promoting the Caribbean Sea Initiative Spiny Lobster Transboundary diagnostic analysis (TDA) Strategic Action Programme (SAP) LME Level Monitoring and Reporting

Emerging Regime in the WCR

Framework Assessment Whole

Let’s do a small study to get some answers! 1 2

Regional organisation invitation Receipt by National Focal Point Multi-stakeholder multi-level forum for consultation Participate in meeting Feedback to interested parties Brief for meeting Meeting report invitationconsultationparticipationnotification REGIONALREGIONAL NATIONALNATIONAL LOCALLOCAL 1. go without interaction 2, avoid the stakeholders

  Continental shelf fisheries ecosystem   Pelagic fisheries ecosystem (flyingfish and large pelagic fisheries and biodiversity)   Central American lobster   Pedro Bank reef ecosystem   Seaflower Biosphere Reserve reef ecosystem Assessments of framework components

Major governance gap ACS/CSC Data and information contributors Target IGOs TNC WECAFC UNEP OSPESCA GAME Caribbean CARICOMP ECLAC Other contributor ICOIN Other contributor Need for a High Level Science-Policy Interface CARICOM SICA OECS Science policy interface Integrated monitoring and reporting component

The CSC was established in 2008 as a regional ocean governance body   All 26 Association of Caribbean States (ACS) countries support the CSC   Support of regional IGOs and NGOs in this potential role The Caribbean Sea Commission (CSC)

  ACS and partners have been pursuing the CSI since 1998   Mainly through promotion of the UN Resolution ‘Towards the sustainable development of the Caribbean Sea for present and future generations’ at the UN General Assembly.   First adopted in 1999 (Res )   Reported upon, revised and readopted in 2000, 2002, 2004, 2006, 2008, 2010 Caribbean Sea Initiative (CSI)

In the resolution the UNGA: ‘Recognizes that the Caribbean Sea is an area of unique biodiversity and a highly fragile ecosystem that requires relevant regional and international development partners to work together to develop and implement regional initiatives to promote the sustainable conservation and management of coastal and marine resources, including, inter alia, the consideration of the concept of the Caribbean Sea as a special area in the context of sustainable development, including its designation as such without prejudice to relevant international law’. Caribbean Sea Initiative (CSI)

The UNGA resolution also:   Takes note of the efforts of the Caribbean States and the work undertaken by the CSC of the ACS...   Welcomes the plan of action adopted by the CSC...   Recognizes the efforts of Caribbean countries to create conditions leading to sustainable development...   Calls upon the UN system and the international community to assist [...] Caribbean countries and their regional organizations [...] to ensure the protection of the Caribbean Sea...   Calls upon the international community, the UN system and the multilateral financial institutions, and invites the GEF [...] to support [...] activities of the Caribbean States towards [...] the sustainable management of coastal and marine resources;   Urges the UN system and the international community to continue to provide aid and assistance to the countries of the Caribbean region [for] disaster prevention, preparedness, mitigation, management, relief and recovery Caribbean Sea Initiative (CSI)

Expert Consultation on Operationalisation of the Caribbean Sea Commission Building a science-policy interface for ocean governance in the Wider Caribbean Association of Caribbean States - Caribbean Sea Commission University of the West Indies, Cave Hill Campus, Barbados, July 7-9, CSI/CSC – Building consensus

Regional partners came from: There were 54 participants

The purpose of the Expert Consultation was to:  Share information on the plans for and status of ‘Operationalisation of the Caribbean Sea Commission’ with critical partners;  Obtain their feedback on the feasibility of the proposals and ideas for improvement of the plan;  Build consensus on how the partners can work together to achieve the overall goal of ocean governance in the Wider Caribbean Region.

The focus of the Consultation was three topics that are key for the CSC:  Regional ocean governance architecture and the role of the CSC  The science-policy interface of the CSC  The information system to support the interface.

Caribbean Sea Initiative (CSI) The UNGA resolution also:   Takes note of the efforts of the Caribbean States and the work undertaken by the CSC of the ACS...   Welcomes the plan of action adopted by the CSC...   Recognizes the efforts of Caribbean countries to create conditions leading to sustainable development...   Calls upon the UN system and the international community to assist [...] Caribbean countries and their regional organizations [...] to ensure the protection of the Caribbean Sea...   Calls upon the international community, the UN system and the multilateral financial institutions, and invites the GEF [...] to support [...] activities of the Caribbean States towards [...] the sustainable management of coastal and marine resources;   Urges the UN system and the international community to continue to provide aid and assistance to the countries of the Caribbean region [for] disaster prevention, preparedness, mitigation, management, relief and recovery

Caribbean Sea Commission (CSC) As part of the CSI the CSC was established in 2008 to promote and oversee the sustainable use of the Caribbean Sea. The Commission shall comprise:   National delegations of Members and Associate Members   The Secretary General of the Association   Organisations   The Economic Commission of Latin America and the Caribbean (ECLAC)   The Caribbean Community (CARICOM)   The Latin American Economic System (CELA)   The Central American Integration System (SICA)   The Permanent Secretariat for the General Agreement on Central American Economic Integration (SIECA)   The Caribbean Tourism Organisation (CTO)   Three experts appointed by the Secretary General in consultation with Members and Associate Members Operating Statute and Rules of Procedure of the CSC, January 2009

Caribbean Sea Commission (CSC) The Caribbean Sea Commission comprises:   A Bureau consisting of the Chair, the two Vice-chairs, and the Secretariat;   A Legal Sub-Commission;   A Scientific and Technical Sub-Commission;   A Governance, Public Information and Outreach Sub-Commission;   A Budget Committee

CSC Subcommissions   Scientific and Technical Subcommission Cochairs   Centre for Resource Management and Environmental Studies, University of the West Indies, Barbados and   Centro de Investigaciones Marinas, Universidad de la Habana, Cuba;   Governance, Outreach and Public Information Subcommission cochairs   CARICOM   SICA   Legal Subcommission cochairs   Mr. Oscar Monge Castro, Attorney-at-Law, Costa Rica   TBD

CSC Subcommissions Sub-Commissions will support the CSC mandate by:   Clarifying information that the CSC needs to meet its mandate to provide advice to the ACS council;   Identifying individuals, organizations or projects that can provide the expertise and information needed;   Coordinating the acquisition, review and synthesis of the information needed;   Formulating or overseeing the formulation of draft advisory documents for consideration by the CSC;   Obtaining and providing clarification as requested by the CSC on any submitted draft advisory documents in a timely manner.

  CSC adopted the LME Governance Framework as its working model   CSC will focus first on living marine resources which are the basis for livelihoods in fisheries, tourism and domestic recreation, as well as providing many other ecosystem services   This focus is based on partnership with the CLME Project with focus on transboundary living marine resources in the Wider Caribbean Region CSC role in regional ocean governance

Conclusions Conventional approach to ocean governance - commissions based on binding agreements - may not be feasible in WCR Alternative models not readily available for adoption or even adaptation WCR ocean governance arrangements have been emerging as an institutional complex – –Is consistent with new governance thinking – –Requires assessment – –Requires coordination and facilitation The Caribbean Sea Commission can provide regional ocean governance policy harmonisation and coordination and is supported by countries and organisations in the WCR.

What next? Recognise the institutional complex as a potentially viable alternatives to conventional approaches and nurture and manage it by – –Development and testing of the LME governance framework as a model – –Development of methods for assessing arrangements – –Designing interventions for improving them – –Develop and implement best practices for ocean governance via an institutional complex A global focus in this direction could lead to a new and productive era in regional and global ocean governance This could be an exciting and innovative new direction for ocean governance in the WCR

Thanks

GLOBAL OCEAN GOVERNANCE: A MULTI-SCALE-LEVEL PERSPECTIVE Robin Mahon Centre for Resource Management and Environmental Studies (CERMES) University of the West Indies, Barbados Oceans in Focus: Science and Governance for Global Sustainability International Council for Science, Forum on Science, Technology and Innovation for Sustainable Development, June, 11-15, 2012 Pontifical Catholic University, Rio de Janeiro

Ocean governance reforms to :  Effectively address the complex and intensive use of ocean resources and space  Reverse current trends Let us:  Focus on global and regional scale levels  Reflect on progress dealing with these levels in ocean governance  Consider some emerging governance ideas  See if we are at ‘a tide in the affairs of men’

OCEANS

DESA OLA

For global level reforms that:  Address fragmentation of responsibility for oceans within the UN system  Facilitate engagement with non- UN partners UN-Oceans will need to become a more substantive entity

What else is needed for effective global ocean governance?  Substantive action takes place lower levels  Regional arrangements are building blocks GLOBAL LEVEL REGIONAL

Building blocks for ocean governance:  Must be at large spatial scale  Should cover all ocean space  Institutions must match ecology How well have we dealt with identifying large-scale ocean ecosystems?  Mixture of ecological and functional approaches

UNEP Regional Seas 13 Areas

FAO fishing areas

Ocean biomes and provinces Longhurst

Marine provinces and ecoregions

Ocean governance institutional coverage  Mainly RFMOs  Regional Seas Program  A few Commissions Not mutually exclusive

Emphasis on strengthening RFMOs:  But, is that enough to get us to ocean EBM? Probably not!!

Full ocean EBM means transition  RFMOs  ROGAs (Regional Ocean Governance Arrangements)

Global stakeholder-based initiatives can support these directions Increased interest suggests that the time is right to look at ocean governance in a holistic way These initiatives must be integrated, mainstreamed and supported Future Ocean Alliance