Browsing by Author "Basurto, Xavier"

Despite decades of study, the question of how to achieve sustainable small-scale fisheries is unresolved. Because small-scale fishing is diverse and hard to control, one management approach places fishers at the center of decision-making. Common-pool resource theory has assembled a large body of evidence that resource users, without top-down state control, are able to devise and enforce rules that lead to long-term sustainable resource harvest. The social and ecological characteristics (“design principles”) are well known for systems where this collective action is predicted to spontaneously emerge. However, it is poorly known what precipitates collective action when these design principles are absent. This dissertation draws insights about this question from a seemingly successful case from Baja California Sur, Mexico, where fishers have voluntarily created no-fishing areas (“Fish Refuges” or “Zonas de Refugio Pesquero”) in collaboration with the government fisheries agency and a non-governmental organization, Niparajá, in the absence of the design principles. This work is based on an in-depth study of these Fish Refuges including 180 days in the field from 2016-2018, participant observation, informal interviews, journaling, and semi-structured interviews (n=66). First, I found that collective action was possible because stakeholders had three competing visions about what the Fish Refuges were, each associated with criteria and evidence of whether the Fish Refuges were effective. This implies that policy flexibility to accommodate competing goals and evaluation criteria could facilitate collaboration for fisheries management. Second, I found that fishers’ knowledge was integrated in a process that did not recognize its legitimacy though what I call “ping-pong hybridization”, where the locus of decision making moved between stakeholders who could draw on their own knowledge systems. This implies that policies may be able to integrate multiple knowledge systems if the locus of decision-making moves back and forth. Third, I found that the property rights regime change away from de facto open access was possible because fishers were able to trade formal fishing rights for informal management rights, closing a fishing area to gain government trust and partnership. This work implies that insecure, unofficial, and tenuous property rights may be a first step of property rights regime change to achieve sustainable fisheries. In conclusion, bottom-up approaches to fisheries management may benefit from processes where different stakeholders can define the goals and methods used, and draw on their own knowledge systems to assess success. Shifts away from open access may be precipitated when fishers demand decision-making rights, even if these rights are tenuous.

Increasingly the challenges of environmental governance are understood as global in nature and scope. Within fisheries, industrial fisheries have long been the global priority in fisheries science, policy instruments, and management techniques. Meanwhile, small-scale fisheries (SSF) have historically been relegated to the margins, framed as local, place-based, static practices from the past rather than global priorities. This dissertation examines the conditions and consequences of transformation in SSF governance, as SSF are becoming a global concern. The passage of a recent internationally negotiated policy for the small-scale sector signifies this monumental shift underway in global fisheries governance priorities: The Voluntary Guidelines for Securing Sustainable Small-Scale Fisheries in the Context of Food Security and Poverty Eradication (SSF Guidelines).By ‘following the policy,’ this research examines the dynamics of policy mobility (e.g., who and what came together to make and implement this policy) across multiple sites and scales of policymaking and implementation as the SSF guidelines are mobilized at global, regional, and national levels. The movement to transform fisheries governance is examined against past patterns in fisheries science and policy, including through analysis of a large-N dataset. The mixed methods used provide needed insights into how different actors (e.g., scientists, policymakers, civil society organizations) have grappled with the questions “governance of what, by whom, to what ends” in SSF through time. While the passage of the SSF Guidelines in 2014 was considered a landmark moment for the SSF sector, attention has now shifted to what they will become; whether and how this policy will ‘scale down’ and to what effects. Studying policy implementation is critical to understanding how transformative change happens in fisheries governance and environmental governance more broadly. Developed with ongoing input from civil society organizations, the SSF Guidelines are the first global policy designed explicitly for SSF. Endorsing gender equality, decent work, and human rights as necessary tenets of sustainability, this policy’s core principles stand in stark contrast to the status quo in fisheries governance. But what these principles will become is uncertain because policy implementation was left intentionally open-ended in the text of the SSF Guidelines which were written without pre-determined implementation targets or definitions of success. This dissertation addresses the central question: How is such an unconventional and unlikely policy mobilized in practice, and how are the ideas within translated in place? To this end, this research engages with the literature on global environmental governance, theories of scale from human geography and common-pool resource scholarship, and the emergent field of critical policy studies, extending these insights to the dynamics SSF governance, an understudied common-pool resource system undergoing transformation here and now. Amidst the wider movement to transform fisheries governance to be more equitable, this research focuses on the principle of gender equality within the SSF Guidelines. Emphasis is placed on how the principle of gender equality came to be part of a global policy instrument in the first place, and later, articulated as the focus of national policy implementation. While this is a multi-sited and multi-scaled story, the dynamics of national-level implementation are followed in the context of Tanzania, one country working to implement this policy in their vast inland and marine fisheries with a chosen focus on gender. Tracing the multi-stakeholder process of developing a national ‘roadmap’ to implement the SSF Guidelines there, this dissertation reveals how the goal of gender equality was translated into specific strategies determined in place, including through a collaborative effort to ‘map’ existing women’s fishing organizations and networks among them. Conclusions demonstrate that flexibility intentionally built into the design of global policies can create room for new understandings of what small-scale fisheries are, how they should be governed, and what a sustainable and desirable future for fisheries looks like—making space to imagine and enact alternatives that are more just and inclusive. Following the indeterminate arc of policy mobility then is critical to determining who steps into the space created by policy change. In the story of creating and implementing the SSF Guidelines, civil society organizations played an outsized role in affecting multi-scalar policy transformation.