Biodiversity Governance: A Tower of Babel of Scales and Cultures

The recently created Intergovernmental Platform on Biodiversity and Ecosystem Services (IPBES), originally focused on multilateral and global issues, is shifting its focus to address local issues and to include in its assessments local stakeholders and indigenous and traditional systems of knowledge. Acknowledging that full biodiversity governance is unavoidably rooted in participation of local actors and their problems and knowledge, we suggest that to deal successfully with the complexity and diversity of local issues, including indigenous knowledge systems, IPBES must recognize a key role of local institutions.     

“We are Zambians—Don’t Tell Us How to Fish!” Institutional Change,Power Relations and Conflicts in the Kafue Flats Fisheries in Zambia

Many scholars claim that open access due to the effective absence of state control is the major reason for the overuse of common-pool resources such as fisheries. Based on data from the Kafue Flats fisheries in Zambia, we argue that the main problem in open-access situations is the paradox of a state that is simultaneously absent and present: present in actions that dismantle local fishery institutions but absent when it comes to the ability to enforce the laws that might protect the resources. Thus, the state is present in the voice of immigrants from other parts of the country who use their Zambian citizenship to legitimize free access to the fisheries. But it is absent when the Department of Fisheries is not able to enforce its own formal rules or control these immigrants’ activities. Local groups are unable to act collectively to reinstall new institutions due to the absence of formal law enforcement. This paper analyses this historic process of institutional change within the theoretical framework of New Institutionalism. We test the hypothesis that the main reason for the lack of local collective action in the Kafue Flats is ideology (the notion of citizenship) strengthening the bargaining power of external actors, who profit most from open access constellations.

Governability Assessment for Fisheries and Coastal Systems: A Reality Check

In this article we argue that in order to understand why some governance systems deliver while others do not, we need to assess contributions and limitations of governability. Here, governability refers to a measure of how governable a particular fisheries and coastal system is. Such a system is always comprised of two parts: a system-to-be-governed and a governing system. Governability also depends on the interactions between these two systems. We provide key variables that must be assessed in order to determine governability related to these systems and their interactions. A governability assessment framework is proposed here to suggest that governance performance can only be judged from what is in the potential of the governing system, given the limitations of the governabiltiy of the system-to-be governed, the governing system itself, and their interactions. Such an assessment helps identify what exactly governing systems can and should do in order to enhance their performance.     

Governing fisheries through the critical decade: the role and utility of polycentric systems

The next 10 years are considered a critical decade for fisheries. Declining fish stocks in combination with mounting climate pressure are likely to lead to significant and adverse socio-ecological impacts, threatening sustainability. Responding to these challenges requires modes of governance that are capable of dealing with the complexity and uncertainty associated with the world’s fisheries and their ecosystems. While a range of governance frameworks exist, the concept of polycentric governance has gained prominence in the environmental sector and is posited as a key principle underpinning the resilience of complex socio-ecological systems. However, the application of polycentric governance to fisheries management has been seldom explored. To examine this prospect, we review the literature on polycentric governance to elucidate its potential value in improving the outlook for fisheries and their associated ecosystems. We highlight a number of unique characteristics that overcome known limitations in other forms of governance—polycentric systems are highly participatory and promote the broadest levels of stakeholder involvement, they increase policy freedom at the local level, and they improve the spatial fit between knowledge, action and socio-ecological contexts to ensure that governance responses are implemented at the most appropriate scale. Through fisheries case-studies, we demonstrate that these characteristics are important in helping fisheries respond to complex challenges. Finally, we articulate key knowledge gaps that should be addressed through future research to understand the conditions under which polycentric governance systems are most suited, and the ways in which they can be operationalised most effectively.     

Is multiculturalism dead? Groups,governments and the ‘real work of integration’

Understood as a philosophy counselling group rights and concomitant public policies undertaken by governments to preserve and enhance group identities, multiculturalism has little purchase in European immigrant integration debates. However, based on interviews with various actors engaged in policies that affect immigrants in the Netherlands and Germany, we argue that multiculturalism remains a going concern if it is understood as a problem-solving practice through which governments acknowledge and work with ethnic and religious groups to address issues of mutual concern, particularly on issues related to gender. We label this ‘multicultural governance’ and argue that it supports the principal ends of integration policy: the socialization of immigrants into prevailing national languages, norms and institutions.     

The use of archived tags in retrospective genetic analysis of fish

Collections of historical tissue samples from fish (e.g. scales and otoliths) stored in museums and fisheries institutions are precious sources of DNA for conducting retrospective genetic analysis. However, in some cases, only external tags used for documentation of spatial dynamics of fish populations have been preserved. Here, we test the usefulness of fish tags as a source of DNA for genetic analysis. We extract DNA from historical tags from cod collected in Greenlandic waters between 1950 and 1968. We show that the quantity and quality of DNA recovered from tags is comparable to DNA from archived otoliths from the same individuals. Surprisingly, levels of cross‐contamination do not seem to be significantly higher in DNA from external (tag) than internal (otolith) sources. Our study therefore demonstrates that historical tags can be a highly valuable source of DNA for retrospective genetic analysis of fish.     

Institutional Governance and Refugee Resistance: Displaced Karen in the Thai–Burma Borderlands

Displaced Karen constitute a complex array of actors in the Thai–Burma borderlands. Forms of governance meant to contain and control these actors are framed by practices of territorial sovereignty and bureaucratic processes of identification and resource allocation. This article examines forms of institutional governance through two broad authorities, the state (predominantly the Thai government) and the humanitarian aid apparatus. It argues that the operations of these two authorities establish a series of control over space and movement and a system of administrative categorisation that works to identify and regulate displaced populations. Based on an ethnographic study of displaced Karen residing in the Thai–Burma borderlands, I go on to argue that the Karen challenge these institutional forms of governance because they do not adequately capture their claims for political autonomy. Key features of this political autonomy include Karen understandings of being a refugee and their experience of the refugee apparatus, their advocacy around human rights abuses, and their agitation for political and social change. I argue that these challenges represent a reframing of the discourse around refugeedom, where displaced Karen bring the experience of displacement back into the ‘humanitarian case’ and pursue a desire to be actively engaged in a political resolution to their displacement.     

The future of ocean governance

Ocean governance is complex and influenced by multiple drivers and actors with different worldviews and goals. While governance encompasses many elements, in this paper we focus on the processes that operate within and between states, civil society and local communities, and the market, including industry. Specifically, in this paper, we address the question of how to move towards more sustainable ocean governance aligning with the sustainable development goals (SDGs) and the UN Ocean Decade. We address three major risks to oceans that arise from governance-related issues: (1) the impacts of the overexploitation of marine resources; (2) inequitable distribution of access to and benefits from marine ecosystem services, and (3) inadequate or inappropriate adaptation to changing ocean conditions. The SDGs have been used as an underlying framework to develop these risks. We identify five drivers that may determine how ocean governance evolves, namely formal rules and institutions, evidence and knowledge-based decision-making, legitimacy of decision-making institutions, stakeholder engagement and participation, and empowering communities. These drivers were used to define two alternative futures by 2030: (a) ‘Business as Usual’—a continuation of current trajectories and (b) ‘More Sustainable Future’—optimistic, transformational, but technically achievable. We then identify what actions, as structured processes, can reduce the three major governance-related risks and lead to the More Sustainable Future. These actions relate to the process of co-creation and implementation of improved, comprehensive, and integrated management plans, enhancement of decision-making processes, and better anticipation and consideration of ambiguity and uncertainty.

     

The politics of immigration locally: alliances between political parties and immigrant organizations

Alliances are a political opportunity that reinforce the claims made by different players in the political sphere. However, the literature on the political participation of immigrants pays little attention to the formation of alliances and their effects on the interaction between immigrants and institutional actors, especially under circumstances of politicization. This article aims to explain the emergence of alliances between political parties and immigrant organizations when immigration is politicized locally. I argue that the need to legitimize the political parties’ position on the politicization guide their alliances with immigrants. Using qualitative methods, I analyse the emergence of alliances in the anti-Romanian-Roma campaign in Badalona and the burka ban in Lleida, both in Catalonia, Spain. The findings portray these relationships as the outcome of strategic interactions that respond to the balance of power between institutional and non-institutional actors.     

Governance Profiles and the Management of the Uses of Large Marine Ecosystems

Interest in the management of the environment and its resources on an ecosystem basis has been increasing in both terrestrial and marine contexts. The emergence of the concept of large marine ecosystems (LMEs) is one important example of this development. LMEs have been examined through five linked modules: (1) productivity of the ecosystem; (2) fish and fisheries; (3) pollution and ecosystem health; (4) socioeconomic conditions; and (5) governance. The first three focus on natural systems, while the last two concentrate on human interactions with those systems. To date the first three have received the greatest attention but as attention has turned to development and implementation of management strategies, greater consideration has being given to the human dimension of LMEs represented by the latter two modules. This article focuses on governance, a matter that is of fundamental importance because it shapes the pattern of human use of the natural environment. Efforts to promote ecosystem-based management occur within different governance frameworks; these frameworks and their associated dynamics must be understood in the same fashion that the structure and interplay of the elements of the natural ecosystem need to be comprehended. Just as natural science employs baseline studies to gauge change over time, this paper asserts the need for similar studies relevant to governance aspects of ecosystem use. After identifying and describing the roles of three major and generic governance institutions, we suggest the development in each LME of a governance profile that outlines and analyzes the existing governance framework. Moreover, we propose to consider governance change over time to assess whether such shifts represent movement in the direction of greater ecosystem focus.     

How to fail in advertising: The potential of marketing theory to predict the community-level selection of defended prey

Economics and ecology both present us with a key challenge: scaling up from individual behaviour to community-level effects. As a result, biologists have frequently utilized theories and frameworks from economics in their attempt to better understand animal behaviour. In the study of predator–prey interactions, we face a particularly difficult task—understanding how predator choices and strategies will impact the ecology and evolution not just of individual prey species, but whole communities. However, a similar challenge has been encountered, and largely solved, in Marketing, which has created frameworks that successfully predict human consumer behaviour at the community level. We argue that by applying these frameworks to non-human consumers, we can leverage this predictive power to understand the behaviour of these key ecological actors in shaping the communities they act upon. We here use predator–prey interactions, as a case study, to demonstrate and discuss the potential of marketing and human-consumer theory in helping us bridge the gap from laboratory experiments to complex community dynamics.     

Realizing responsibility. Institutional routines,critical intervention,and the “big” questions in the controversy over non-invasive prenatal testing in Germany

NIPT has become a matter of controversy in Germany over the past years, there is now a widespread concern that it raises fundamental social and ethical questions. Starting from the assumption that responsible governance requires governance actors to address these questions, the article examines how the main governance actors realized their responsibility in the sense of conceiving and performing it. Building on the pragmatic sociology of critique, we study how actors are doing responsibility within a given institutional and political context. We show that critical interventions disrupted institutional routines and caused governance actors to struggle with conflicting commitments of complying with institutional rules and exercising responsibility by taking social and ethical considerations into account. Whereas these conflicting commitments posed a predicament for political decision-makers, who solved it through shifting responsibility for social and ethical issues elsewhere, there was no such predicament for the producers; for them, routine and responsibility converged.     

Regional Fishery Organizations: How and Why Organizational Diversity Matters

Regional fishery organizations are increasingly being viewed as "vehicles of good governance" created to secure the sustainable development of international fisheries. These political expectations have not been followed by analytical refinement of how to explain and understand their formation, roles, objectives, institutional setups, or efficiency. This article provides a conceptual discussion of regional fishery organizations and introduces an organizational typology as a basis for their study. Thus, an analytical distinction is made between regional fisheries management organizations, regional coordination and development organizations and scientific research organizations. This typology and the evolution of the Law of the Sea, from an open access to the exclusive economic zone regime, are used to analyze the institutional arrangements of regional fishery organizations.     

Institutional non‐participation in assisted dying: Changing the conversation

Whether institutions and not just individual doctors have a right to not participate in medical assistance in dying (MAID) is controversial, but there is a tendency to frame the issue of institutional non‐participation in a particular way. Conscience is central to this framing. Non‐participating health centres are assumed to be religious and full participation is expected unless a centre objects on conscience grounds. In this paper we seek to reframe the issue. Institutional non‐participation is plausibly not primarily, let alone exclusively, about conscience. We seek to reframe the issue by making two main points. First, institutional non‐participation is primarily a matter of institutional self‐governance. We suggest that institutions have a natural right of self‐governance which, in the case of health centres such as hospitals or hospices, includes the right to choose whether or not to offer MAID. Second, there are various legitimate reasons unrelated to conscience for which a health centre might not offer MAID. These range from considerations such as institutional capacity and expertise to a potential contradiction with palliative care and a concern to not conflate palliative care and MAID in public consciousness. It is a mistake to frame the conversation simply in terms of conscience‐based opposition to MAID or full participation. Our goal is to open up new space in the conversation, for reasons unrelated to conscience as well as for non‐religious health centres who might nonetheless have legitimate grounds for not participating in MAID.     

Managing Small-Scale Commercial Fisheries for Adaptive Capacity: Insights from Dynamic Social-Ecological Drivers of Change in Monterey Bay

Globally, small-scale fisheries are influenced by dynamic climate, governance, and market drivers, which present social and ecological challenges and opportunities. It is difficult to manage fisheries adaptively for fluctuating drivers, except to allow participants to shift effort among multiple fisheries. Adapting to changing conditions allows small-scale fishery participants to survive economic and environmental disturbances and benefit from optimal conditions. This study explores the relative influence of large-scale drivers on shifts in effort and outcomes among three closely linked fisheries in Monterey Bay since the Magnuson-Stevens Fisheries Conservation and Management Act of 1976. In this region, Pacific sardine (Sardinops sagax), northern anchovy (Engraulis mordax), and market squid (Loligo opalescens) fisheries comprise a tightly linked system where shifting focus among fisheries is a key element to adaptive capacity and reduced social and ecological vulnerability. Using a cluster analysis of landings, we identify four modes from 1974 to 2012 that are dominated (i.e., a given species accounting for the plurality of landings) by squid, sardine, anchovy, or lack any dominance, and seven points of transition among these periods. This approach enables us to determine which drivers are associated with each mode and each transition. Overall, we show that market and climate drivers are predominantly attributed to dominance transitions. Model selection of external drivers indicates that governance phases, reflected as perceived abundance, dictate long-term outcomes. Our findings suggest that globally, small-scale fishery managers should consider enabling shifts in effort among fisheries and retaining existing flexibility, as adaptive capacity is a critical determinant for social and ecological resilience.     

Ten years of dynamic co-management of a multi-species reef fishery

Co-management, a governance process whereby management responsibility is shared between resource users and other collaborators, is a mainstream approach for governing social and ecological aspects of small-scale fisheries. While many assessments of co-management are available for single time periods, assessments across longer time-scales are rare–meaning the dynamic nature, and long-term outcomes, of co-management are insufficiently understood. In this study we analyse ten-years of catch and effort data from a co-managed, multi-species reef fishery in Solomon Islands. To further understand social, ecological and management dynamics we also draw on interviews with fishers and managers that had been conducted throughout the same decade. We aimed to answer (1) what are the temporal trends in fishing effort, harvesting efficiency, and catch composition within and beyond a periodically-harvested closure (i.e. a principal and preferred management tool in Pacific island reef fisheries), and, (2) what are the internal and external drivers that acted upon the fishery, and its management. Despite high fishing effort within the periodically-harvested closure, catch per unit effort remained stable throughout the ten years. Yet the taxonomic composition of catch changed substantially as species targeted early in the decade became locally depleted. These observations indicate that both the frequency of harvesting and the volumes harvested may have outpaced the turnover rates of target species. We argue that this reflects a form of hyperstability whereby declining abundance is not apparent through catch per unit effort since it is masked by a shift to alternate species. While the community sustained and adapted their management arrangements over the decade as a response to internal pressures and some signs of resource changes, some external social and ecological drivers were beyond their capabilities to govern. We argue the collaborative, knowledge exchange, and learning aspects of adaptive co-management may need even more attention to deal with this complexity, particularly as local and distal pressures on multi-species fisheries and community governance intensify.

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Emerging multilevel environmental governance – A case of public participation in Poland

In recent decades, nature conservation policies have increasingly considered the participation of various actors. However, the effectiveness of such efforts is often questionable, and better methods of engaging stakeholders are still being sought. In this paper, we present an analysis of a consultation program conducted in the final stage of site selection for Natura 2000 in Małopolska, a region located in southern Poland. Based on a desk study and qualitative research, we analysed the modes and degrees of participation, the normative foundations of the consultation program, and the goals and expectations that characterise participants. The results are discussed using Unnestall's and Arnstein's typologies of participation, which show the limited success of the participatory process in representing all relevant stakeholders and enabling their actual influence on final decisions. The importance of implementing the EU directives for emerging multilevel governance in the nature conservation sector in Central and Eastern Europe, including Poland, is highlighted. In the context of Poland, the consultation program analysed appeared to be a novel and innovative step forward towards the development of a meaningful participatory approach in this region of Europe.     

Conservation strategies for coastal wetlands in the Gulf of California,Mexico

Wetlands worldwide, the fisheries they support, and the communities that depend on them are threatened by habitat modification. We describe strategies being used for wetland conservation in the Gulf of California, Mexico, their effectiveness, and challenges for implementation. We base our analysis on the authors’ experience working for local environmental non-governmental organizations and available literature. The strategies discussed include public and private policy instruments such as Environmental Impact Evaluations, environmental land easements, concessions and transfer agreements, Natural Protected Areas, and international agreements such as the Ramsar convention and the North American Wetlands Conservation Act. We present examples from the Gulf of California that highlight some of the challenges to wetland conservation. These challenges range from governmental failure to enforce existing environmental legislation, lack of verification of requirements for development projects, to low economic penalties for wetland modification or destruction. We found that in the Gulf of California successful conservation of coastal wetlands required a combination of policy instruments and relied on integrating science, management, and public participation through partnerships between non-governmental institutions, academic institutions, community stakeholders, and government agencies.     

Where the fish swim above the birds: configurations and challenges of wetland restoration in the Po Delta,Italy

Wetland and estuary restoration presents a number of complex challenges that are primarily social, cultural, economic, and governance‐related rather than ecological. Here we consider the case of wetland restoration in the Po Delta, Italy. Wetland restoration of the Po Delta is a goal of a broad range of actors in the region and this project is a response to local calls for action. We investigate why local stakeholders are unsatisfied with apparently successful restoration projects, and appraise the factors that favor both the fulfillment of environmental targets and establishment of cooperative relations. We suggest that historical legacies of land use in the Po Delta have influenced current governance practices in a complex and fragmented governance context. Also, patterns of wetland restoration and wetland management practices differ between wetland types, and their outcomes may be influenced by the number of stakeholders involved, funding, and ability to generate direct revenues from management. However, there seem to be no blueprint solutions to successful wetland management and wetland restoration, and results are uneven at the landscape scale and often depending on contingencies. Maintaining traditional practices that retain cultural importance may be seen as part of restoration by local people. As a landscape that is highly anthropogenic and in continuous motion, we argue that the Delta exemplifies some of the challenges that restoration will face in a world increasingly characterized by novel ecosystems. We suggest actions that could contribute to enhancing wetland restoration outcomes in the Po Delta.