- Resource System
- Coastal marine ecosystem
- Resource Units
- Marine fish stocks
Marine protected areas remain as one of the most popular tools for the conservation and management of natural resources in marine ecosystems. However, mere establishment of MPAs without the proper design, management, or enforcement tools may give a false sense of security that such MPAs will be enough to sustain marine resources. The Gulf of California (GOC), in Mexico, has received a great deal of attention over the past 20 years as a region where conservation and resource management efforts are badly needed, yet the measurable outcomes of such efforts, both in terms of marine resource sustainability and socio-economic well being, still leave much to be desired. This case study decomposes the broad social-ecological system of the Gulf of California into its components by means of a comparative analysis of two case studies in which the establishment of an MPA has been linked in some way to the communities affected by it. The overall goal is, by identifying the most important shocks and vulnerabilities of the system in each case study, to better understand what exactly drives the constant resistance to not only the establishment of resource management tools like MPAs but also the subsequent compliance with the regulations in place once an MPA has been established.
Isla San Pedro Mártir, Bahía de Kino, Sonora, México
Resource System
Resource:
-(Mostly) Small-scale fisheries focusing on: ray-finned fish (e.g. leopard grouper, yellow snapper, spotted sand bass), cartilaginous fish (e.g., hammerhead shark and diamond stingray), arthropods (e.g., swimming crab, blue shrimp, and spiny lobster), mollusks (e.g., octopus and rock scallop), and echinoderms (e.g. sea cucumber).
-Shark, shrimp and fish trawling, sardine purse seining (for occasional large-scale fisheries)
Island of San Pedro Mártir (ISPM) –the most oceanic island in the Gulf of California, located in the Midriff Islands Region (MIR) more than 60 km away from both the states of Baja California and Sonora.
The waters adjacent to the island are important feeding and reproductive grounds for large commercial species (i.e. groupers and snappers), sea turtles and marine mammals.
Resource Users
Users:
-Community of Bahia de Kino (BKI, 5,000 people) in the state of Sonora.
-Small-scale fishers from other communities in Sonora and Baja California
-(Occasionally) Large-scale fisheries
-(Occasionally) Sport fishers from the US.
Public Infrastructure Providers
Two federal agencies: 1) SEMARNAT (Secretary of the Environment and Natural Resources) is in charge of regulating species listed only under ‘special protection’ and houses the enforcement body called PROFEPA (Federal Agency for the Protection of the Environment). 2) SAGARPA (Federal Agency for the Protection of the Environment) houses the National Fisheries Commission (CONAPESCA) in charge of enforcing regulations that fall under SAGARPA’s jurisdiction, issuing licenses for fishing in the form of permits, concessions, or authorizations. Also houses a National Commission of Natural Protected Areas (CONANP), which is in charge of the establishment and management of MPAs.
NGOs and academia: wrote and presented the official management program of the biosphere reserve in public hearings. NGOs: COBI (Comunidad y Biodiversidad, A.C.) -a marine conservation and community development NGO operating in northwest Mexico. Another NGO was the GECI (Grupo de Ecologia y Conservacion de Islas). Academia: Prescott College Center for Cultural and Ecological Studies -a field station that has been working in education and research in the region for over 20 years.
Public Infrastructure
The official management program wasn’t authorized and published until 2007, 5 years after the marine reserve was established. The newly re-categorized biosphere reserve had a total area of 302 km2 –including 3 km2 of the island and 299 km2 of the surrounding marine area. The marine area was divided into 9 km2 of a No-Take Core Zone that comprised 3% of the marine area of the entire MPA, but protects ~30% of the island's coastline and its adjacent fishing grounds, and a remaining 290 km2 buffer zone.
Fishing Concessions: CONAPESCA grants species-specific fishing concessions as a form of exclusive fishing access rights within specific areas. Fishers from Bahia de Kino would be given preferential access to the area and the reserve would give a legal means to control access of highly impacting fishing activities such as bottom fish trawling. -Mexico’s environmental law states that communities within and/or near reserves have special access rights to these areas-. Fishers’ adoption of the MPA was used as a means to help petition exclusivity of fishing and territorial access rights, or to negotiate management restrictions to fishing. However, these conditions would NOT be formalized and enforced until the official Management Program was accepted and published in 2007.
Relationship 1
Fishers depend on the fishery resources year-round.
-(Mostly) Small-scale fishers from BKI and other communities in Sonora and Baja California
-(Occasionally) Large-scale fisheries (e.g. shark, shrimp, fish trawling, sardine purse seining)
-(Occasionally) Sport fishers from the US (e.g. large groupers and pelagic species such as yellowtail jack and dorado).
ISPM has always been seen as a temporary refuge because of its location – it is not an area that is regularly used by individual fishers. It’s a backup area where they can get good catches when having the time, money, and willingness to make the trip (a visit may require camping 3-4 nights). There is a prevalent general belief that the island’s populations quickly “bounce back” if there is not much more pressure from other fishers.
Relationship 2
COBI was hired in 2000 to conduct feasibility study for the establishment of a new MPA and to facilitate a negotiation forum between fishers and the government. They obtained baseline information regarding fishers and local government officials' perceptions and conducted educational workshops.
Strength: NGOs and academia have played important roles in empowering stakeholders, producing data and proposals with scientific backup, facilitating the communication and helping bridge local ecological knowledge with experimental design, validating fishermen's knowledge and actions within higher local and federal government entities.
Relationship 3
Federal government's initiative to begin a discussion with BKI to re-categorizing the ISPM as a biosphere reserve and adding the marine environment to the overall management and protection of the island. COBI conducted a negotiation workshop in which the stakeholders designed the final zoning of the new reserve, which culminated in the presentation of a formal proposal to the federal government to re-categorize the existing reserve (the island) as a biosphere reserve. The proposal submitted by COBI, CEGI, and Prescott took 2 years to be formalized and published in the Federal Register (in 2002). When the government proposed to establish a core zone, fishers agreed since they did not have much to lose and had more to gain by testing it as a management tool.
Even in 2009 there is still not enough personnel dedicated to its management, monitoring, and enforcement. NGOs and academia have played important roles in working with the government and fishing sectors to establish reserves as management and conservation tools.
Vulnerability: ISPM is 60 km offshore (relatively distant), this giving way to mistrust as to whether the area is being poached in or not. It also makes it difficult to monitor, increasing transaction costs associated with enforcement. .
Relationship 4
No-Take Zones (NTZs) prohibit harvesting within them, which reduces the total stock size, and this is made up for by harvesting outside the NTZs. This calls for assessment of spatio-temporal changes in fishing effort and species targeted after the establishment of the NTZs.
Relationship 5
(none specified)Relationship 6
The establishment of a core zone provided an experiment as a management tool and allowed fishers from BKI to be given preferential access to the area and give a legal means to control access of highly impacting fishing activities such as bottom fish trawling.
-Vulnerabilities: Conflicts arising with respect to which communities should be granted these rights and who decides to grant these rights (constitutional rules).
Between 2003 and 2008, researchers from the NGOs and Prescott College and staff from the MPA conducted “surprise” visits on 258 separate occasions to record human activities, and on 39% of these visits, both commercial and sport fishers were seen fishing within the core zone, even after an extensive public education campaign.
Exogenous Drivers 7 (Resource System)
(none specified)Exogenous Drivers 7 (Public Infrastructure)
(none specified)Exogenous Drivers 8 (Resource Users)
(none specified)Exogenous Drivers 8 (Public Infrastructure Providers)
In 2000, there was constant re-structuring of the fishery administration in Mexico -going form a Federal Secretariat to a Commission-, which led to budget reductions, confusion as to which agencies are held accountable for what, and inefficiencies in bureaucratic processes.
The directorship of the local fisheries office changed drastically and brought personnel from outside the region who were unaware of existing local institutional arrangements and overall less supportive of fishers' management initiatives.
Human Infrastructure, Private and Human-Made (Resource Users)
(none specified)Human Infrastructure, Private and Human-Made (Public Infrastructure Providers)
(none specified)Puerto Peñasco, Sonora, México
Resource System
Resource: -(Mostly) Small-scale fisheries (hookah -air compressor- diving sector) focusing on benthic shellfish (snails, pen shells, scallops, clams, octopus) & reef fish (large groupers & snappers). -(Occasionally) Large-scale fisheries (shrimp) Location: -The fishing grounds of PP border the Upper Gulf of California and Colorado River Delta Biosphere Reserve. -San Jorge Island (SJI, one of the most richest fishing grounds) is 30 km southwest of PP.Resource Users
Users: -Community of Puerto Peñasco (PP, 40,000 people) in the state of Sonora. -Small-scale fishing fishers (230 boats) -Large-scale shrimp trawler fishers (120 boats) -Divers from the community of Bahia de Kino (BKI, 5,000 people, 600 km south by road and 8h away by boat) took advantage of Puerto Peñasco's informal refuge in San Jorge Island (SJI) and harvested rock scallops.Public Infrastructure Providers
Two federal agencies: 1) SEMARNAT (Secretary of the Environment and Natural Resources) is in charge of regulating species listed only under ‘special protection’ and houses the enforcement body called PROFEPA (Federal Agency for the Protection of the Environment). 2) SAGARPA (Federal Agency for the Protection of the Environment) houses the National Fisheries Commission (CONAPESCA) in charge of enforcing regulations that fall under SAGARPA’s jurisdiction, issuing licenses for fishing in the form of permits, concessions, or authorizations. Also houses a National Commission of Natural Protected Areas (CONANP), which is in charge of the establishment and management of MPAs. Hookah diving sector: Also Resource Users, organized collectively to establish management strategies. NGOs and academia: facilitated obtaining funds for monitoring, designed monitor techniques with fishers, analyzed results, and trained divers for ecological data acquisition. NGOs: CEDO (Centro Intercultural de Estudios de Desiertos y Oceanos) -a community-based conservation and research NGO based out of Puerto Peñasco. Academia: The University of Arizona.Public Infrastructure
Establishment of reserves (informal, collective-choice level): In 2000, the divers convened to discuss future management guidelines and petitioned the federal government to establish a season closure for black murex snail (formally granted in 2001). In 2001, the divers set an informal temporary refuge covering 3km of coastline at SJI (30 km southwest of PP) without waiting for government recognition. This was also meant for larval recruitment and dispersal of commercial benthic organisms (black murex snail & rock scallop). In 2002, divers established a network of 3 reserves (SJI and 2 coastal areas) to cover 18 km of coastline. These were agreed to be closed for 3 years, after which they would re-assess future management efforts. Fishing Concessions: CONAPESCA grants species-specific fishing concessions as a form of exclusive fishing access rights within specific areas. In 2006, the diving co-op was granted a fishing concession that provided exclusive access rights to rock scallop fishing grounds. Fishing permits: In 2003, the diving cooperative was granted some of the fishing permits lost during the national fisheries re-structuring process in 2000.Relationship 1
Fishers depend on the fishery resources year-round. -Operational level: evident declines in availability of benthic resources, primarily black murex snail and rock scallop, the hookah diving sector took a more precautionary behavior. This included approaching CEDO to help conduct ecological assessments of the benthic resources. -Collective-choice level: the informal network of reserves protected ~30% of the historical fishing grounds, chosen particularly because they have been historically treated as temporary refuge.Relationship 2
Members of the community of PP from the hookah diving sector took the lead in petitioning and lobbying to the federal government for a season closure for black murex snail. -Vulnerabilities: Community initiatives operated on very different time frames than those of the government. The slow responses from the federal government cause stakeholders to stop believing in the seriousness of their government and undermine their efforts to continue establishing and encouraging management and conservation schemes. -Strength: However, to some degree, the divers' example led local and federal government agencies (including the navy) to be more actively engaged in the support and implementation of their management initiatives. This was due to the rapport built between the divers and local government officials. Strength: NGOs and academia have played important roles in empowering stakeholders, producing data and proposals with scientific backup, facilitating the communication and helping bridge local ecological knowledge with experimental design, validating fishermen's knowledge and actions within higher local and federal government entities.Relationship 3
Divers conducted ecological surveys of commercial species and detected direct, first-hand benefits of their efforts (feeling collectively empowered). This was all facilitated by NGOs and academia as they have taken some of the financial, logistic, and technical burden off essential monitoring processes. They have played important roles in working with the government and fishing sectors to establish reserves as management and conservation tools. However, since the temporary refuge was not federally recognized initially, the community couldn't count on the government for enforcement support when other communities took advantage of the closure. Vulnerability: the process to lawfully recognize closure in the Federal Register is lengthy, and highly politicized, involving time frames, resources, and efforts that can seldom be afforded by fishers and the state of their natural resources. In this case, the initial closure was federally recognized a year after the petition was made by the PP divers. Vulnerability: SJI is 30 km offshore (relatively distant), this giving way to mistrust as to whether the area is being poached in or not. It also makes it difficult to monitor.Relationship 4
Rock scallop: 3 years after the establishment of reserves, SJI's populations had recovered since the last major harvest (densities were 6 times higher than in other coastal areas monitored and breeding aggregations increased significantly, also found in shallower waters in areas previously unexploited). Mollusks: densities of juveniles in fished areas at the downstream edge of the reserve network increased threefold since the network was established (direct benefits by means of larval dispersal). Snails: Average size of harvested snails increased significantly. No-Take Zones (NTZs) prohibit harvesting within them, which reduces the total stock size, and this is made up for by harvesting outside the NTZs. This calls for assessment of spatio-temporal changes in fishing effort and species targeted after the establishment of the NTZs.Relationship 5
The informal network of reserves gave protection to approximately 30% of the divers' historical fishing grounds.Relationship 6
Members of the community of PP from the hookah diving sector took the lead in defining and establishing a temporary harvest refuge surrounding SJI and subsequently a network of 3 reserves. This form of social capital represents informal trial and error processes. -Vulnerability: Given the weakness in Link 3 with respect to federal recognition of the reserves and the quick spread of the word on harvest refuges that led to the quick members of BKI to take advantage of the closures, divers from PP also headed to the island in frenzy to harvest as many rock scallops as possible and collectively fish on the island before others would continue free-riding on their efforts. Strengths: NGOs and academia have helped bridge local ecological knowledge with experimental design. Vulnerabilities: The establishment of MPAs can be seen as a negotiating opportunity for stakeholders to acquire access rights to fishery resources and preferential use of fishing grounds. -Conflicts arising with respect to which communities should be granted these rights and who decides to grant these rights (constitutional rules).Exogenous Drivers 7 (Resource System)
(none specified)Exogenous Drivers 7 (Public Infrastructure)
(none specified)Exogenous Drivers 8 (Resource Users)
(none specified)Exogenous Drivers 8 (Public Infrastructure Providers)
In 2000, there was constant re-structuring of the fishery administration in Mexico -going form a Federal Secretariat to a Commission-, which led to budget reductions, confusion as to which agencies are held accountable for what, and inefficiencies in bureaucratic processes. -Also, with changes in the Presidential Administration that came abut in 2000, bureaucratic problems caused many small-scale fishers to lose their fishing permits during the renovation process, forcing them to work illegally or under other permit holders. The directorship of the local fisheries office changed drastically and brought personnel from outside the region who were unaware of existing local institutional arrangements and overall less supportive of fishers' management initiatives.Human Infrastructure, Private and Human-Made (Resource Users)
(none specified)Human Infrastructure, Private and Human-Made (Public Infrastructure Providers)
(none specified)MANCHA CISNEROS MDM, Arizona State University.
Brady U, Arizona State University.
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