Evaluating Consensus-based Fisheries Management Planning: A Case Study from Canada’s Pacific Groundfish Fisheries Neil Davis M.Sc. Candidate University of British Columbia

Setting the Stage integrated fishing begins –Comprehensive reforms to 7 groundfish fisheries A somewhat unique collaborative planning model –Industry-led, consensus-based, multi-sectoral negotiations How well did this model work? –A systematic process evaluation –Participants’ perspectives Image: BC Business Magazine 2007

Outline Background –The fisheries & the planning process Methods –A framework for evaluation Results –Strengths & weaknesses of the process Practical Implications

Pacific Groundfish fisheries Pacific Ocean Sablefish Trap Catch Schedule II Catch (Lingcod & Dogfish) British Columbia Vancouver Data from Maps: DFO Mapster 2007

Pacific Groundfish fisheries Pacific Ocean Rockfish Catch (directed) Trawl Catch British Columbia Vancouver Data from Data from Maps: DFO Mapster 2007

Pacific Groundfish Fisheries 2005 Grand Total: $ (DFO 2005)

Groundfish Sectors (Pre-integration) Fishery PrimaryLimitedIndividualAnnual ValueActive GearLicensesQuotas(millions)*Licenses* DogfishLonglineNo $1.544 LingcodHook & LineNo $1.666 Inside RockfishHook & LineYesNo $ Outside RockfishHook & LineYesNo77 Trawl Yes $ HalibutLonglineYes $ SablefishTrap, longlineYes $ Numbers are averages of 2002 – 2005 (DFO Regional Data Unit 2007)

Advisory Process Structure DFO agenda: –Conserve rockfish –Accountability & monitoring as principles for reform 2 advisory committees: –Commercial Groundfish Integrated Advisory Committee Broad stakeholder representation Provide overarching policy direction & advice –Commercial Industry Caucus (CIC) Commercial fishery & processor representatives Develop a strategy that addresses DFO’s criteria

Evaluation Framework 1.Clear Purpose 2.Incentive to Participate 3.Representation 4.Procedural Framework 5.Continuous Involvement 6.Scope 7.Facilitation 8.Equal Opportunity 9.Freedom to Explore 10.Transparency 11.Information 12.Financial & human resources 13.Time 15.Commitment 16.Personal Conduct Fairness & Effectiveness Process StructureDecision-makingSupportParticipant Conduct

Methods Semi-structured interviews –16 of 20 primary participants –all 7 commercial sectors Questions: –Performance on criteria –Additional elements –Strengths and weaknesses Analysis: –Coding transcripts –Aggregating & summing responses Image: Canadian Sablefish Association

Results

Strengths of the Process StrengthMentions a Functions Consensus14Equalises influence on decisions, forces participants past positioning Independent facilitation12Guides & teaches process, enforces rules, counteracts power imbalances Incentive11Undesirable consequences of non-agreement motivates commitment and compromise a Number of respondents that volunteered this element as a strength

Weaknesses of the Process WeaknessMentions a Suggested improvements Code of conduct6CIC should create more detailed rules/agreements addressing conflicts of interest and conduct outside process Representative selection process 6DFO should create and enforces a formalised, consistent, and transparent representative selection process Government support4DFO should provide greater political support, financial support, and human resources a Number of respondents that volunteered this element as a weakness

Influential Elements Outside the Framework High quality individuals –Lead by example –Innovate & cooperate –Non confrontational Prior experience –Positive & negative experiences are both motivators Image: US Environmental Protection Agency

Prior Experiences “I went through the salmon fiasco in the 90s…I watched every fishery I’d ever been involved with disappear, and tried every organisational framework I could think of to try and stop it from happening and failed at every one of them. And we're all in the same boat. We’re all sitting there seeing public pressure, environmental concerns, you name it. International treaty issues, aboriginal issues…if you don't organise and work together you're definitely going to be wiped out.” »Lou, CIC member

Implications for Practice “The hammer”…and a seat cushion Success is not achieved through design alone –Individuals & experiences Government’s multiple roles –Support vs. manipulation Limitations of study –Legitimacy beyond CIC? Image: DFO Pacific

Thank you Questions? Neil Davis M.Sc. Candidate University of British Columbia ACKNOWLEDGMENTS BC Ministry of Environment UBC University Graduate Fellowship program Donald S. McPhee Fellowship program OMRN National Secretariat Dr. Paul Wood, UBC

Estimated bycatch Species TACs for all sectors (lbs) Estimated bycatch for all sectors (lbs) % of TAC utilised by bycatch Rougheye % Shortraker % Yelloweye % Big Skate % Modified from Koolman et al. (2007)