New Directions in OceansNew Directions in OceansManagementManagement

An overview of current An overview of current thinkingthinking

Bob O’BoyleBob O’Boyle

Bedford Institute of OceanographyBedford Institute of Oceanography

Dartmouth, Nova ScotiaDartmouth, Nova Scotia

Ecosystem Approach to ManagementEcosystem Approach to Management

Each ocean sector one of manyEach ocean sector one of many

Control of cumulative impacts across Control of cumulative impacts across sectors to meet multiple objectivessectors to meet multiple objectives biodiversity, productivity & habitatbiodiversity, productivity & habitat

21st Century Paradigm in21st Century Paradigm inOcean ManagementOcean Management

2121stst Century Paradigm in Century Paradigm inOcean ManagementOcean Management

Management Strategy EvaluationManagement Strategy Evaluation

Assessment one element of ocean Assessment one element of ocean management system (OMS)management system (OMS)

Examination of behaviour of entire OMSExamination of behaviour of entire OMS Relative merits of different management Relative merits of different management

strategies given strategies given UNCERTAINTYUNCERTAINTY of each OMS of each OMS elementelement

Management Strategy EvaluationManagement Strategy Evaluation

PopulationEcosystem

Observation Assessment

HarvestRules

DecisionMaking

Implementation

From McAllister et. al. 1999

Control Control ModuleModule

Operational ModuleOperational ModuleTraditional AssessmentTraditional Assessment

EcosystemEcosystem

SectorSectorMgtMgt

EAMEAM

Sector e.g. FisheriesSector e.g. FisheriesAssessmentAssessment MSEMSE

MSE MSE implementatioimplementation faster than n faster than

EAMEAM

MSEMSEWithin Within EAMEAM

Ecosystem Ecosystem Approach to Approach to ManagementManagement

(EAM)(EAM)

What is EAM?What is EAM?(FAO 2003)(FAO 2003)

Ecological Understanding as Guide to ManagementEcological Understanding as Guide to Management

Coordinated Management of Sectoral ActivitiesCoordinated Management of Sectoral Activities Ecosystem approach to management within sectorEcosystem approach to management within sector Integrated management across sectorsIntegrated management across sectors

Management of Cumulative & Long-term ImpactsManagement of Cumulative & Long-term Impacts

Precautionary ApproachPrecautionary Approach

EAM not replacement for conventional sector, EAM not replacement for conventional sector, species or activity specific managementspecies or activity specific management Takes broader viewTakes broader view

EAM should be implemented in concert with EAM should be implemented in concert with Integrated Management (IM)Integrated Management (IM) IM = Planning & management across sectors & IM = Planning & management across sectors &

agencies (governance)agencies (governance) Onus on multi-national, federal, state & local agencies Onus on multi-national, federal, state & local agencies

to coordinate & communicate on EAMto coordinate & communicate on EAM

Is EAM Essential?Is EAM Essential? Growing awareness that ecosystem approach needed for ocean managementGrowing awareness that ecosystem approach needed for ocean management

Collapse of fisheries worldwideCollapse of fisheries worldwide Multiple uses of ocean growingMultiple uses of ocean growing

• Oil & gas, trade, aquacultureOil & gas, trade, aquaculture

• Competition for limited resource (the ocean)Competition for limited resource (the ocean)

Many acts, legislations & policies that require harmonizationMany acts, legislations & policies that require harmonization EAM is a means to do thisEAM is a means to do this

Comparison of International Comparison of International EAM Efforts EAM Efforts

Experience with EAM at different stages of Experience with EAM at different stages of development - Lots still to learndevelopment - Lots still to learn

Canada, EU, Australia, New Zealand & USACanada, EU, Australia, New Zealand & USA Case studies chosen based on experience with EAM Case studies chosen based on experience with EAM

Main features identified that lead EAM in 'right Main features identified that lead EAM in 'right direction'direction'

Enablers of EAM Enablers of EAM

Are there conditions that facilitateAre there conditions that facilitate

acceptance & implementationacceptance & implementation

of EAM?of EAM?

• Political LeadershipPolitical Leadership• Legislative MandateLegislative Mandate• Overarching PolicyOverarching Policy• Stakeholder Buy-inStakeholder Buy-in

Political LeadershipPolitical Leadership

Greatly facilitates efforts to advance EAMGreatly facilitates efforts to advance EAM Without this, difficult to overcome conventional Without this, difficult to overcome conventional

management structuresmanagement structures

Associated legislative mandate & resourcingAssociated legislative mandate & resourcing Establish new institutionsEstablish new institutions Incentive to existing agencies to embrace EAMIncentive to existing agencies to embrace EAM

NZ & US are examples where some progress on NZ & US are examples where some progress on EAM can be made without legislative mandate EAM can be made without legislative mandate

or even national policy (NZ) or even national policy (NZ)

Legislative MandateLegislative Mandate CanadaCanada

1997 Canada Oceans Act, 1992 CEAA & 2003 SARA1997 Canada Oceans Act, 1992 CEAA & 2003 SARA

EUEU Basis for EAM in ratified international & national laws, treaties, conventions & agreements Basis for EAM in ratified international & national laws, treaties, conventions & agreements

(e.g. OSPAR & HELCOM)(e.g. OSPAR & HELCOM)

AustraliaAustralia 1992 Intergovernmental Agreement on the Environment & associated National Strategy for 1992 Intergovernmental Agreement on the Environment & associated National Strategy for

Ecologically Sustainable Development (ESD)Ecologically Sustainable Development (ESD) 1999 Environmental Protection & Biodiversity Conservation Act1999 Environmental Protection & Biodiversity Conservation Act

New ZealandNew Zealand No national legislation but dNo national legislation but development of Fisheries Act & Resource evelopment of Fisheries Act & Resource

Management Act (cross non-fishery sector planning but within 12 nm)Management Act (cross non-fishery sector planning but within 12 nm)

USUS While no national legislation, ratified UNFA & implementing FAO Code While no national legislation, ratified UNFA & implementing FAO Code

of Conductof Conduct Federal legislation incorporates EAM principles e.g.:Federal legislation incorporates EAM principles e.g.:

• Magnuson-Stevens Fishery Conservation and Management Act, Marine Mammal Magnuson-Stevens Fishery Conservation and Management Act, Marine Mammal Protection Act, Endangered Species Act, National Environmental Policy Act, Protection Act, Endangered Species Act, National Environmental Policy Act, Coastal Zone Management Act, Marine Plastic & Pollution Research & Control Coastal Zone Management Act, Marine Plastic & Pollution Research & Control ActAct

New state legislation (Oceans Acts) in California & under development New state legislation (Oceans Acts) in California & under development in Massachusetts, Oregon & New Jerseyin Massachusetts, Oregon & New Jersey

Legislative MandateLegislative Mandate

Overarching PolicyOverarching Policy CanadaCanada

2002 Oceans Strategy2002 Oceans Strategy

EUEU 6th Environmental Action Program has seven Thematic Strategies, one of 6th Environmental Action Program has seven Thematic Strategies, one of

which iswhich is• EU Marine Thematic Strategy (EMS) for Protection & Conservation of European EU Marine Thematic Strategy (EMS) for Protection & Conservation of European

Marine Environment (under development)Marine Environment (under development) Integrates patchwork of legislation, policy, programs & action plans at regional, national, Integrates patchwork of legislation, policy, programs & action plans at regional, national,

EU & international levelsEU & international levels

AustraliaAustralia 1998 Australia Oceans Policy (AOP) basis for Marine Bioregional 1998 Australia Oceans Policy (AOP) basis for Marine Bioregional

Planning (MBP)Planning (MBP) Since 2005, MBP backed by 1999 Environmental Protection & Since 2005, MBP backed by 1999 Environmental Protection &

Biodiversity Conservation ActBiodiversity Conservation Act

New ZealandNew Zealand Oceans Policy delayed by jurisdictional issues with Maori but reintroduced in 2005Oceans Policy delayed by jurisdictional issues with Maori but reintroduced in 2005 Framework for coordinating EAM effortsFramework for coordinating EAM efforts

• Strategy for Managing Environmental Effects of Fishing (2006)Strategy for Managing Environmental Effects of Fishing (2006)

• Biodiversity Strategy (2002) & MPA Policy Biodiversity Strategy (2002) & MPA Policy

USAUSA Commission on Oceans Policy (2004), complimented by Pew Oceans CommissionCommission on Oceans Policy (2004), complimented by Pew Oceans Commission

• Coherent, comprehensive & long-range national policy for exploration, protection & use of ocean Coherent, comprehensive & long-range national policy for exploration, protection & use of ocean & coastal resources& coastal resources

• Recommendations on EAM for federal & state authorities with regulatory power over sector Recommendations on EAM for federal & state authorities with regulatory power over sector activitiesactivities

Overarching PolicyOverarching Policy

Stakeholder Buy-InStakeholder Buy-In

EAM needs build upon the many EAM needs build upon the many sector-based consultative / advisory sector-based consultative / advisory bodies that already existbodies that already exist Stakeholders must see benefits of EAMStakeholders must see benefits of EAM

Regulators must see benefits of EAMRegulators must see benefits of EAM

Implementation of EAMImplementation of EAM

What elements shouldWhat elements should

Implementation of EAM have?Implementation of EAM have?

Best practices Best practices

based on case studiesbased on case studies

Elements of ImplementationElements of Implementation Planning area boundariesPlanning area boundaries

Nested planning & management processNested planning & management process Overarching coordinationOverarching coordination

Planning area coordinationPlanning area coordination

Sector managementSector management

OutcomeOutcomeFocusedFocused

& & AdaptiveAdaptive

Planning Area BoundariesPlanning Area Boundaries Ideally, manage circumscribed ecosystem impacted by defined group Ideally, manage circumscribed ecosystem impacted by defined group

of stakeholdersof stakeholders Incorporates not only ecological relationships but also existing regulatory & Incorporates not only ecological relationships but also existing regulatory &

socio-economic boundaries socio-economic boundaries

But…But… Ecosystems have varying scales of organizationEcosystems have varying scales of organization Many administrative areas & jurisdictions already existMany administrative areas & jurisdictions already exist

No set formula in five case studies No set formula in five case studies Ecological & administrative realitiesEcological & administrative realities Pragmatic approachPragmatic approach

• We manage people, not ecosystems!We manage people, not ecosystems!

CanadaCanada 5 Large Ocean Management Areas (offshore) defined so far5 Large Ocean Management Areas (offshore) defined so far

Based upon ecoregions & administrative boundariesBased upon ecoregions & administrative boundaries

ChallengesChallenges Boundaries with USA on both coasts & in coastal areaBoundaries with USA on both coasts & in coastal area Federal / provincial jurisdictionFederal / provincial jurisdiction

ESSIMESSIM

European UnionEuropean Union 11 Eco-regions (from ICES) based upon existing biogeographical & management regions11 Eco-regions (from ICES) based upon existing biogeographical & management regions

Shared jurisdiction greatest challengeShared jurisdiction greatest challenge EU Water Framework (coastal), EC (fisheries)EU Water Framework (coastal), EC (fisheries)

AustraliaAustralia 5 Planning Regions based on Large Marine Domains & management considerations 5 Planning Regions based on Large Marine Domains & management considerations

(jurisdictional & political)(jurisdictional & political)

Shared jurisdiction challenge, internationally, with States & across sectorsShared jurisdiction challenge, internationally, with States & across sectors AOP only applicable to federal waters, ie.3 nm to international boundaryAOP only applicable to federal waters, ie.3 nm to international boundary

New ZealandNew Zealand Planning areas not officially defined at national level, but…Planning areas not officially defined at national level, but…

Under Resource Management Act, within 12 nm Territorial Sea, 10 regional Under Resource Management Act, within 12 nm Territorial Sea, 10 regional councils have decision-making authority over most activities (but not fishing)councils have decision-making authority over most activities (but not fishing)

Under Fisheries Act, fishery has its own areasUnder Fisheries Act, fishery has its own areas

ChallengesChallenges Different boundaries used by regional councils, Ministry of Fisheries & Different boundaries used by regional councils, Ministry of Fisheries &

Department of ConservationDepartment of Conservation• None coincide with Maori boundaries, which are becoming increasingly important in None coincide with Maori boundaries, which are becoming increasingly important in

managing oceans activities (inshore mostly)managing oceans activities (inshore mostly) No EAM requirements in mining & oil legislationNo EAM requirements in mining & oil legislation

USAUSA Planning areas not officially defined at national level but CPlanning areas not officially defined at national level but Commission on Oceans ommission on Oceans

Policy suggested starting with regional fishery management council boundariesPolicy suggested starting with regional fishery management council boundaries

NOAANOAA10 regions based on10 regions based on

Large Marine EcosystemsLarge Marine Ecosystems

EPAEPA5 regions to coordinate large scale 5 regions to coordinate large scale

ecosystem based programsecosystem based programs

Jurisdictional Jurisdictional challengechallenge

AtAtFederal & Federal & State levelState level

Nested Planning & Management Nested Planning & Management ProcessProcess

Hierarchical structure links legislative mandate Hierarchical structure links legislative mandate & overarching policy at top to control of sectors & overarching policy at top to control of sectors at bottomat bottom

• Overarching Overarching (Canada Ocean Strategy)(Canada Ocean Strategy)• Planning area Planning area (ESSIM)(ESSIM)• Sector Sector (Fishery)(Fishery)• Sub-sector Sub-sector (Crab fleet)(Crab fleet)

Objectives at all levels with management Objectives at all levels with management actions at planning area & belowactions at planning area & below

Two Types of ObjectivesTwo Types of Objectives Conceptual Objectives or GoalsConceptual Objectives or Goals

Interpret legislative mandate to be understandable to broad audienceInterpret legislative mandate to be understandable to broad audience• E.g. Restore Coral Community Biodiversity to pre-1980 levelsE.g. Restore Coral Community Biodiversity to pre-1980 levels

Operational Objectives or StrategiesOperational Objectives or Strategies Link between Conceptual Objective & Management ActionLink between Conceptual Objective & Management Action Specific enough to be clear to allSpecific enough to be clear to all

• Refers to indicator (e.g., biomass) & reference point (e.g., 50,000 t)Refers to indicator (e.g., biomass) & reference point (e.g., 50,000 t)

• E.g. Limit Area (sq Km) disturbed of Coral Community to 5000 sq kmE.g. Limit Area (sq Km) disturbed of Coral Community to 5000 sq km Allow measurement of progress towards conceptual objectiveAllow measurement of progress towards conceptual objective Precautionary Approach enters EAM at this pointPrecautionary Approach enters EAM at this point

TerminologyTerminology IndicatorIndicator

Quantity that can be measured & used to track Quantity that can be measured & used to track changes over timechanges over time

Reference point / directionReference point / direction Value of indicator corresponding to target or limitValue of indicator corresponding to target or limit Direction of indicator towards target or away from Direction of indicator towards target or away from

limitlimit

Operational ObjectiveOperational ObjectiveINDICATOR

T IM E

R eference point (target)

Indicator

Perform ancem easures

R eference point (lim it)

Red zone

Yellow zone

Green zone

or PA

OverarchingOverarchingConceptual ObjectivesConceptual Objectives

Planning AreaPlanning AreaConceptual ObjectivesConceptual Objectives

Planning AreaPlanning AreaOperational ObjectivesOperational Objectives

SectorSectorOperational ObjectivesOperational Objectives

Sub - SectorSub - SectorOperational ObjectivesOperational Objectives

Link to National PolicyLink to National Policy

Link to Overarching COsLink to Overarching COsRegional PrioritiesRegional Priorities

Monitor Ecosystem StatesMonitor Ecosystem StatesControl Cumulative Impacts of SectorsControl Cumulative Impacts of Sectors

Control Cumulative Impacts of Sub-Control Cumulative Impacts of Sub-SectorsSectors

Control Impacts of Sub-SectorControl Impacts of Sub-Sector

Ecosystem Objectives HierarchyEcosystem Objectives Hierarchy

Cumulative ImpactsCumulative ImpactsLevel of Level of

HierarchyHierarchyConceptual ObjectiveConceptual Objective Operational ObjectiveOperational Objective

OverarchingOverarching Conserve Community Conserve Community BiodiversityBiodiversity

N/AN/A

Planning AreaPlanning Area Restore Coral Community Restore Coral Community Biodiversity to pre-1980 levelsBiodiversity to pre-1980 levels

Limit Area (sq Km) disturbed of Limit Area (sq Km) disturbed of Deep Sea Coral Community to Deep Sea Coral Community to

6000 sq km6000 sq km

Fishery SectorFishery Sector N/AN/A Limit Area (sq Km) disturbed of Limit Area (sq Km) disturbed of Deep Sea Coral Community to 50% Deep Sea Coral Community to 50%

of 6000 sq km (3000 sq km)of 6000 sq km (3000 sq km)

Crab FisheryCrab Fishery N/AN/A Limit Area (sq Km) disturbed of Limit Area (sq Km) disturbed of Deep Sea Coral Community to Deep Sea Coral Community to

1000 sq km1000 sq km

Groundfish FisheryGroundfish Fishery N/AN/A Limit Area (sq Km) disturbed of Limit Area (sq Km) disturbed of Deep Sea Coral Community to Deep Sea Coral Community to

1000 sq km1000 sq km

Shrimp FisheryShrimp Fishery N/AN/A Limit Area (sq Km) disturbed of Limit Area (sq Km) disturbed of Deep Sea Coral Community to Deep Sea Coral Community to

1000 sq km1000 sq km

Overarching Conceptual Objective

Planning Area Conceptual Objective

Planning Area Operational

Objective

Fisheries Sector OO

Groundfish Fishery OO

Oil & Gas Sector OO

Transport Sector OO

Defense Sector OO

Diversity of Benthic Communities

N/A N/A

Community Biodiversity

Diversity of Fragile Coral Community

N/A N/A

High Diversity Gully Benthic Community

N/A N/A

Overall Species Diversity

N/A N/A N/A N/A

Species Biodiversity SAR Diversity N/A N/A N/A N/A

N/A N/A N/A

Population Biodiversity Genetic Diversity N/A N/A N/A N/A

Primary ProductivityProductivity at base

of food chainN/A N/A N/A N/A N/A

N/A N/A N/A N/A N/A

Productivity of Forage Species

N/A N/A N/A N/A

Trophic StructureTrophic Level Productivity

N/A N/A N/A N/A N/A

N/A N/A N/A N/A N/A

Energy transfer N/A N/A N/A N/A

Growth Productivity N/A N/A N/A N/A

Population Generation Time

Recruitment Productivity

N/A N/A N/A N/A

N/A N/A N/A N/A

Sediment Quality N/A N/A N/A N/A

Physical Features N/A N/A N/A N/A

Sound Environment N/A N/A N/A

Chemical Environment

N/A N/A N/A N/A

Chemical Features N/A N/A N/A N/A

Physiological Processes

N/A N/A N/A N/A

N/A N/A N/A N/A

Suite of ConceptualSuite of Conceptual& Operational Objectives& Operational Objectives

defines EAM indefines EAM inPlanning AreaPlanning Area

Colour indicates Colour indicates PerformancePerformance

OfOfOperational ObjectiveOperational Objective

Green: Green: GoodGood Yellow: Yellow: CautionCaution Red: Red: PoorPoor

Overarching ObjectivesOverarching Objectives

Conceptual, long term, & should enable countries to Conceptual, long term, & should enable countries to satisfy terms of international agreements & satisfy terms of international agreements & conventionsconventions Linked to legislative mandate & overarching policyLinked to legislative mandate & overarching policy

Guidance & coordination to all planning areas under Guidance & coordination to all planning areas under EAMEAM

Overarching ObjectivesOverarching Objectives

Canada, Australia & EUCanada, Australia & EU All have / considering overarching objectivesAll have / considering overarching objectives

New ZealandNew Zealand Coordination regionally basedCoordination regionally based

USAUSA Commission on Ocean Policy provided set of overarching objectivesCommission on Ocean Policy provided set of overarching objectives

CanadaCanadaNationalNational

OverarchingOverarchingObjectivesObjectives

Socio-economicSocio-economicObjectives StructureObjectives Structure

being consideredbeing considered

M ain ta inC om m u n ities

M a in ta inS p ec ies

M a in ta inP op u la tion s

C on serveE cosys tem

C om p on en ts(B iod ive rs ity)

M a in ta inP rim ary

P rod u c tion

M a in ta inTrop h ic

S tru c tu re

M a in ta inP op u la tion s

C on serveC om p on en t's

R o le(P rod u c tivity)

B o ttom

W aterC o lu m n

C on serveP h ys ica l

P rop ert ies

W ate rQ u a lity

B io taQ u a lity

C on serveC h em ica lP rop ert ies

C on serveP h ys ica l /C h em ica lP rop ert ies

C on serva tiono f

S p ec ies &H ab ita t

Planning AreaPlanning AreaConceptual ObjectivesConceptual Objectives

Overarching objectives made Overarching objectives made specific to address issues in specific to address issues in planning area, based on…planning area, based on… Ecosystem descriptionEcosystem description

• Components & RelationshipsComponents & Relationships Threats analysisThreats analysis

• Stressor / Receptor AnalysisStressor / Receptor Analysis

Canadian Example of Canadian Example of Stressor / Receptor AnalysisStressor / Receptor Analysis

Sector responsible for threat identifiedSector responsible for threat identified

Gaps in responsibility (e.g., non-point source pollution) identifiedGaps in responsibility (e.g., non-point source pollution) identified

Planning AreaPlanning AreaConceptual ObjectivesConceptual Objectives

Conceptual Objectives formulated & prioritized based on…Conceptual Objectives formulated & prioritized based on… Top - down (scientists)Top - down (scientists)

• What are key components being impacted?What are key components being impacted? Bottom - up (stakeholders)Bottom - up (stakeholders)

• What are important stressors to address?What are important stressors to address? Risk analysis (quantitative / qualitative)Risk analysis (quantitative / qualitative)

• Risk = impact * likelihoodRisk = impact * likelihood

Determine Ocean Sectors to Determine Ocean Sectors to Implement Planning Area ObjectivesImplement Planning Area Objectives

Determine which ocean sectors implicated in Determine which ocean sectors implicated in which stressors & thus Operational Objectiveswhich stressors & thus Operational Objectives Some stressors might come from outside planning Some stressors might come from outside planning

AreaArea Some objectives, while noted by one sector, might Some objectives, while noted by one sector, might

be relevant to othersbe relevant to others Some objectives need to be addressed at sector Some objectives need to be addressed at sector

level, others at sub-sector levellevel, others at sub-sector level

In CanadaIn Canada Ecosystem Overview & Assessment Report (EOAR) for Ecosystem Overview & Assessment Report (EOAR) for

each LOMAeach LOMA Ecosystem structure / functioning, human activities (e.g. fishing), Ecosystem structure / functioning, human activities (e.g. fishing),

stressors (e.g. dragging) & impacted ecosystem components or stressors (e.g. dragging) & impacted ecosystem components or receptors (e.g. benthic community)receptors (e.g. benthic community)

• EOARs to be completed in 2007EOARs to be completed in 2007

Conservation Objectives being formulated & prioritizedConservation Objectives being formulated & prioritized Priority based onPriority based on

• Ecological & Biological Significant Areas & SpeciesEcological & Biological Significant Areas & Species• Degraded Areas & Depleted SpeciesDegraded Areas & Depleted Species

Discussion with stakeholders on other objectivesDiscussion with stakeholders on other objectives

EUEU Coastal member states are to develop Coastal member states are to develop

Implementation plans including (within x years of Implementation plans including (within x years of EMS adoption):EMS adoption): Assessment of environmental status (within 4 years)Assessment of environmental status (within 4 years) Objectives (within 5 years)Objectives (within 5 years) Monitoring program (within 6 years)Monitoring program (within 6 years) Develop & operationalize management actions (by 2016 Develop & operationalize management actions (by 2016

& 2018 respectively)& 2018 respectively)

Irish Sea ProjectIrish Sea Project Implementation of EAM testedImplementation of EAM tested

AustraliaAustralia First regional marine plan (SE Australia) completed in 2004 First regional marine plan (SE Australia) completed in 2004

• 9 conceptual objectives9 conceptual objectives Planning currently being conducted for northern & southwestern regionsPlanning currently being conducted for northern & southwestern regions

New ZealandNew Zealand Fiordland Marine Conservation StrategyFiordland Marine Conservation Strategy

• Conceptual objectives for fisheries, values of special significance, risks to marine environment, StewardshipConceptual objectives for fisheries, values of special significance, risks to marine environment, Stewardship

USAUSA Oceans Commission reportOceans Commission report

• Regional Ecosystem Assessment should be conducted to assess state & threats to ecosystemsRegional Ecosystem Assessment should be conducted to assess state & threats to ecosystems

Planning AreaPlanning AreaOperational ObjectivesOperational Objectives

Start with planning area conceptual objective & 'unpack' to point Start with planning area conceptual objective & 'unpack' to point where indicator & reference point can be referred towhere indicator & reference point can be referred to

• Important to classify indicatorsImportant to classify indicators• Pressure State Response framework being considered by manyPressure State Response framework being considered by many

These are linked to management actionsThese are linked to management actions Basis of decision rulesBasis of decision rules

Suite of all operational objectives in planning area could inform Suite of all operational objectives in planning area could inform determination of ecosystem healthdetermination of ecosystem health

Overarching Conceptual Objective

Planning Area Conceptual Objective

Planning Area Operational

Objective

Fisheries Sector OO

Groundfish Fishery OO

Oil & Gas Sector OO

Transport Sector OO

Defense Sector OO

Diversity of Benthic Communities

N/A N/A

Community Biodiversity

Diversity of Fragile Coral Community

N/A N/A

High Diversity Gully Benthic Community

N/A N/A

Overall Species Diversity

N/A N/A N/A N/A

Species Biodiversity SAR Diversity N/A N/A N/A N/A

N/A N/A N/A

Population Biodiversity Genetic Diversity N/A N/A N/A N/A

Primary ProductivityProductivity at base

of food chainN/A N/A N/A N/A N/A

N/A N/A N/A N/A N/A

Productivity of Forage Species

N/A N/A N/A N/A

Trophic StructureTrophic Level Productivity

N/A N/A N/A N/A N/A

N/A N/A N/A N/A N/A

Energy transfer N/A N/A N/A N/A

Growth Productivity N/A N/A N/A N/A

Population Generation Time

Recruitment Productivity

N/A N/A N/A N/A

N/A N/A N/A N/A

Sediment Quality N/A N/A N/A N/A

Physical Features N/A N/A N/A N/A

Sound Environment N/A N/A N/A

Chemical Environment

N/A N/A N/A N/A

Chemical Features N/A N/A N/A N/A

Physiological Processes

N/A N/A N/A N/A

N/A N/A N/A N/A

Suite of Operational Suite of Operational ObjectivesObjectives

AtAtPlanning Area LevelPlanning Area Level

could definecould defineEcosystem HealthEcosystem Health

Colour indicates Colour indicates PerformancePerformance

OfOfOperational ObjectiveOperational Objective

Green: Green: GoodGood Yellow: Yellow: CautionCaution Red: Red: PoorPoor

CanadaCanada Suites of LOMA operational Suites of LOMA operational conservationconservation objectives planned for 2007 objectives planned for 2007

EUEU Irish Sea Pilot ProjectIrish Sea Pilot Project

• Operational Operational conservationconservation objectives established & tested objectives established & tested

AustraliaAustralia Southeast Regional Marine Plan completedSoutheast Regional Marine Plan completed

• Operational objectives under developmentOperational objectives under development

New ZealandNew Zealand FiordlandFiordland

• Activities focused on how to devise operational objectivesActivities focused on how to devise operational objectives

USAUSA California Action Plan includes 13 operational objectivesCalifornia Action Plan includes 13 operational objectives

Sector Operational ObjectivesSector Operational Objectives

Sectoral Operational Objectives already part of Sectoral Operational Objectives already part of management systems of all case studiesmanagement systems of all case studies

Need to adapt existing sector management to move Need to adapt existing sector management to move towards an ecosystem approachtowards an ecosystem approach Putting current objectives in EAM frameworkPutting current objectives in EAM framework Developing new objectives to fill gapsDeveloping new objectives to fill gaps Engaging regulators & stakeholders on EAMEngaging regulators & stakeholders on EAM

ConclusionsConclusions

Impetus for EAM apparent through Impetus for EAM apparent through endorsement of international treaties / endorsement of international treaties / agreementsagreements

EAM adopted in all cases studiesEAM adopted in all cases studies Neither US nor New Zealand have formal national Neither US nor New Zealand have formal national

EAM coordinationEAM coordination• Some success in advancing EAMSome success in advancing EAM

Case studies with strong institutional approach likely Case studies with strong institutional approach likely to be more successfulto be more successful

ConclusionsConclusions

Planning area boundaries based on practical Planning area boundaries based on practical realities of conservation & administrationrealities of conservation & administration Many jurisdictional issues (international, national, Many jurisdictional issues (international, national,

regional)regional)

Objective setting & prioritization a challengeObjective setting & prioritization a challenge Unclear how socio-economic objectives incorporatedUnclear how socio-economic objectives incorporated EAM should be participatory, proactive, open & EAM should be participatory, proactive, open &

transparent to ensure credibility & buy-intransparent to ensure credibility & buy-in

ConclusionsConclusions Need to interconnect regulatory agencies to ensure EAM Need to interconnect regulatory agencies to ensure EAM

successsuccess Sector plans must be linked to ensure management of Sector plans must be linked to ensure management of

cumulative & long-term impactscumulative & long-term impacts• No single sector can implement EAM independentlyNo single sector can implement EAM independently

Refocus sector management to meet EAM objectivesRefocus sector management to meet EAM objectives Don't abandon single species management but fill gaps to Don't abandon single species management but fill gaps to

meet EAM objectivesmeet EAM objectives

Management Strategy Management Strategy EvaluationEvaluation

(MSE)(MSE)

BackgroundBackground

Since 1977, fish stock assessment in Canada Since 1977, fish stock assessment in Canada (and elsewhere) has focused on counting (and elsewhere) has focused on counting organisms to inform management decisions organisms to inform management decisions

Stock assessmentStock assessment Counts current number of organismsCounts current number of organisms Analyses productivityAnalyses productivity Projects impacts on resource of different levels of Projects impacts on resource of different levels of

harvestingharvesting

Issues with ApproachIssues with Approach Stock assessment not well integrated into rest of Stock assessment not well integrated into rest of

fisheries management systemfisheries management system Does stock assessment really meet management Does stock assessment really meet management

needs?needs? Variability in whole management system not Variability in whole management system not

evidentevident Is stock assessment the problem or enforcement?Is stock assessment the problem or enforcement?

Management increasing recognized as set of Management increasing recognized as set of interacting systemsinteracting systems

Ocean Management SystemOcean Management System

PopulationEcosystem

ObservationSystem

AssessmentSystem

HarvestRules

DecisionSystem

ImplementationSystem

From McAllister et. al. 1999

Harvest Control Module

Operating ModuleTraditional Assessment

Management Strategy EvaluationManagement Strategy Evaluation SimulationSimulation of ocean management system of ocean management system as a as a

wholewhole, including, including Monitoring programMonitoring program Measurements that will be madeMeasurements that will be made How measurements will be analysed & used in How measurements will be analysed & used in

assessmentassessment How results will be used in managementHow results will be used in management How decisions will be implementedHow decisions will be implemented

Development of Development of clear objectivesclear objectives to evaluate to evaluate against - with relevant performance measures against - with relevant performance measures (indicator vs. reference point)(indicator vs. reference point)

Evaluation of Evaluation of feasible feasible management optionsmanagement options

Not focused on how much Not focused on how much resource exists & can be resource exists & can be

harvestedharvested

Conducts comparison of which Conducts comparison of which management strategy is most management strategy is most

robust (reliable) under different robust (reliable) under different assumptions of uncertaintyassumptions of uncertainty

StepsSteps

Identify issues and objectives Identify issues and objectives List performance indicatorsList performance indicators Identify alternative solutions (alternative Identify alternative solutions (alternative

management scenarios)management scenarios) Evaluate each management scenario Evaluate each management scenario

against the performance indicatorsagainst the performance indicators Highlight tradeoffsHighlight tradeoffs Communicate results to stakeholders and Communicate results to stakeholders and

decision-makersdecision-makers

EAM partEAM part

ConsequencesConsequences Ecosystem / populationEcosystem / population

Greater emphasis on what is know or otherwiseGreater emphasis on what is know or otherwise ObservationObservation

More explicit consideration of uncertainty of different More explicit consideration of uncertainty of different approaches & impact on rest of management systemapproaches & impact on rest of management system

AssessmentAssessment provides indicators for decision - makingprovides indicators for decision - making

• Could be straight forwardCould be straight forward• NOT same as ecosystem / populationNOT same as ecosystem / population

Consequences (cont'd)Consequences (cont'd)

Harvest Control RulesHarvest Control Rules What is best for the system?What is best for the system?

• Constant F, constant catch, SSB & F, etcConstant F, constant catch, SSB & F, etc

Decision SystemDecision System What is influence of deviation from control rule?What is influence of deviation from control rule?

Implementation SystemImplementation System What is impact of different levels of What is impact of different levels of

enforcement & compliance?enforcement & compliance?

Qualitative and Quantitative MSEQualitative and Quantitative MSE

Often not possible to be fully quantitative Often not possible to be fully quantitative (requires complex modelling) (requires complex modelling)

Qualitative MSEQualitative MSE Evaluates impacts from high - medium - lowEvaluates impacts from high - medium - low Can be conducted by a small group of Can be conducted by a small group of

scientists, managers and stakeholders scientists, managers and stakeholders Results then evaluated by a broader group Results then evaluated by a broader group

SummarySummary

New directions in oceans management implicate New directions in oceans management implicate significant changes to current approachsignificant changes to current approach Planning & Objectives HierarchyPlanning & Objectives Hierarchy Management SystemManagement System

Will take a number of years of sustained effort to Will take a number of years of sustained effort to implementimplement global exchange on concepts & approaches neededglobal exchange on concepts & approaches needed

Thank You!Thank You!

SynopsisSynopsisElementElement AustraliaAustralia NZNZ EUEU CanadaCanada USAUSA

PoliticsPolitics StrongStrong StrongStrong Strong but Strong but Green PaperGreen Paper

StrongStrong Getting Getting betterbetter

LegislationLegislation 1999 EPBCA1999 EPBCA No but RMA No but RMA & FA devel& FA devel

OSPAR, OSPAR, HELCOM, etcHELCOM, etc

1997 COA1997 COA No but No but updates to updates to many actsmany acts

PolicyPolicy 1998 AOP1998 AOP Under develUnder devel 2002 EMS2002 EMS 2002 COS2002 COS 2004 USCOP2004 USCOP

AreasAreas 5 MBPAs5 MBPAs FA & RMA FA & RMA areasareas

11 11 EcoregionsEcoregions

5 LOMAs (so 5 LOMAs (so far)far)

NOAA (10)NOAA (10)

EPA (5)EPA (5)

COsCOs MBPMBP

guidelinesguidelines

Biodiversity Biodiversity StrategyStrategy

14 COs & 14 COs & guidelinesguidelines

EOARs & EOARs & EosEos

USCOPs USCOPs COs & COs & guidelinesguidelines

OOsOOs MPA networkMPA network MPA Policy MPA Policy & Fiordland& Fiordland

Irish Sea Irish Sea ProjectProject

By sectorBy sector By agency & By agency & statestate

ChallengeChallenge Fed - StateFed - State RMA - FARMA - FA JurisdictionJurisdiction Coastal Coastal NOAA - EPANOAA - EPA

Assessment & EBMAssessment & EBM Stock AssessmentStock Assessment

few features to considerfew features to consider few indicators (biomass, F) based upon modelsfew indicators (biomass, F) based upon models

Ecosystem AssessmentEcosystem Assessment require indicators/RPs related to biodiversity, productivity & habitatrequire indicators/RPs related to biodiversity, productivity & habitat many features to considermany features to consider

• limited understanding & few modelslimited understanding & few models many potential indicatorsmany potential indicators

• some qualitative & some quantitativesome qualitative & some quantitative

Need different analytical approachNeed different analytical approach for assessment, decision-making & communicationfor assessment, decision-making & communication

Traffic Light ApproachTraffic Light Approach Methodology to combine diverse indices into Methodology to combine diverse indices into

one frameworkone framework could foresee indicators / RPs for all parts of could foresee indicators / RPs for all parts of

management systemmanagement system• resource (diversity, productivity, habitat)resource (diversity, productivity, habitat)• socio-economicssocio-economics• enforcementenforcement

Promising for Ecosystem-based ManagementPromising for Ecosystem-based Management Many issues of assessment framework remain to Many issues of assessment framework remain to

be resolvedbe resolved

Traffic Light ApproachTraffic Light Approach

Putting Unpacking & Traffic Putting Unpacking & Traffic Light Method Together…Light Method Together…

Strategic Operational

1. Objective Decision Rules

1.1 Sub-Objective Verb+ If C1 is RED reduce exploitation

1.1.1 Operational Objective Characteristic 1 If C1 is YELLOW do not increase+ If C1 is GREEN increase slightlyReference point

Indicator 1

Indicator 2

Indicator 3

Verb+

2.1.2 Operational Objective Characteristic 2+Reference point

Policy Domain Traffic Light Domain

AHA!

Healthy fish stocks for the benefit of Canadians

Rebuild or maintain biomass at optimum levels

Restore abundance to levels comparable to the 1950-60’sRestore abundance to levels comparable to the 1950-60’s

Management ActionsManagement Actions• Tools same as nowTools same as now

QuotasQuotas Time at Sea limitsTime at Sea limits Gear restrictionsGear restrictions Closed seasons / areasClosed seasons / areas

• New ways to control human impacts on benthic communitiesNew ways to control human impacts on benthic communities need to classify by type & vulnerabilityneed to classify by type & vulnerability need to limit human activities by typeneed to limit human activities by type

Expected Life History Traits Expected Life History Traits according to Southwood Modelaccording to Southwood Model

PhysiologicallyPhysiologicallyBenignBenign

(High Productivity)(High Productivity)

PhysiologicallyPhysiologicallyAdverseAdverse

(Low Productivity)(Low Productivity)

PhysicallyPhysicallyStableStable

Offspring medium & smallOffspring medium & smallLongevity mediumLongevity medium

Offspring few & largeOffspring few & largeLongevity longLongevity long

PhysicallyPhysicallyDisturbedDisturbed

Offspring many smallOffspring many smallLongevity shortLongevity short

Offspring medium largeOffspring medium largeLongevity mediumLongevity medium

Scope for Growth

Dis

turb

ance

High Productivity (Benign)

Low Productivity (Adverse)

Sta

ble

Dis

turb

ed

De

pth

Gra

in s

ize

Cu

rre

nt

Food AvailabilityWater temperatureVariability in temperatureOxygen Saturation

Wave h

eig

ht/

peri

od

Stratification

HighestRisk to

Impact

Lowest Risk

toImpact

Risk to Impact MapRisk to Impact Map

Areas of Potentially

Higher Sensitivity

• By-catch including By-catch including endangered speciesendangered species

• Habitat impactsHabitat impacts• Genetic consequencesGenetic consequences

• Large scale community Large scale community changeschanges

• Climate changeClimate change

• Control of species Control of species interactions (e.g. cod / interactions (e.g. cod / seal)seal)

Example of Fisheries IssuesExample of Fisheries Issues

Fishery Fishery on on EcosysteEcosystemm

EcosysteEcosystem on m on FisheryFishery

Ecosystem Ecosystem ManipulatioManipulatio

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