Abstract
Marine protected areas (MPAs) are promoted as an effective model for the management of marine areas worldwide. They are not only a technical management measure but also a social institution that interacts with existing use rights. In the Canary Islands, several marine reserves have already been created, while others have been proposed. Some of the already created protected areas were promoted and supported by small-scale fisher organizations. Newly proposed areas are to be backed by different institutions and small-scale fishers. For small-scale fishers marine reserves have some advantages in terms of co-governance and increased involvement in rule making and surveillance. However, increasingly, other stakeholders like recreational fishers are demanding inclusion in the governing process. It is recreational fishers who are usually the most unsupportive of MPAs and thus pose governability challenges. Involving them, therefore, in discussion about MPAs may help improve governability although it will require institution building on their side. We conclude that MPAs’ inception processes are both a challenge and an opportunity for governability, as they promote new patterns of interactions between stakeholder groups.
This article is based on research conducted under the project “Governance challenges for sustainable small-scale fisheries: creating synergies with marine conservation and tourism” (GOBAMP II, CSO2013-45773-R, financed by Ministry of Economy and Competitiveness of Spain), with the support of the Vice-rectorate of Research and International Relations of the University of La Laguna, Tenerife. We acknowledge the collaboration of the Network of Marine Reserves of the General Secretary of Fisheries, Ministry of Agriculture, Food and Environment of Spain.
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Notes
- 1.
European Union usually defines small-scale as being fishing activities carried out by boats less than 12 m in length and not using towed gear (Council Regulation (EC) No 1198/2006 on the EFF) (Macfadyen et al. 2011).
- 2.
The state has declared 10 Marine Reserves with this designation (see http://goo.gl/A5jF2O, accessed 16 July 2014), some of them established and managed jointly with regional governments, and the Valencian and Galician regional governments has two more each.
- 3.
Total employment in fisheries and aquaculture in the Canary Islands is 1,662 persons as of September 2014 (Source: Canarian Institute of Statistics). There is no official data about employment in the fleet of less than 12 m but our current estimate is around 1,000 fishers.
- 4.
Article 148 of the 1978 Spanish Constitution specifies that regional governments have the capacity to legislate and manage maritime areas (Suárez de Vivero and Frieyro de Lara 1994); hence, fisheries responsibilities are shared in Spain. Both national and regional governments legislate on the protection of the marine environment under their jurisdiction. For regional governments, this relates to internal waters, as those situated between capes and specified by the state. As Suárez de Vivero et al. affirms: “This division of competences also affects territorial distribution: the Central Administration have exclusive competences over the Territorial Seas (TS) and the Exclusive Economic Zone (EEZ) – where most national fishing areas are located – whereas the regional governments restrict their action to Internal Waters (IW)” (1997, 199).
- 5.
The Cabildo Insular is a local institution of government in the Canary Islands, created from 1912, There are seven Cabildos one for each of the Islands, and they have the capacity to regulate some areas like tourism or environment.
- 6.
Project PARQMAR, financed by INTERREG IIIB call of proposals, focused on the marine protected areas of Azores, Madeira and the Canary Islands.
- 7.
The LOTRACA or Organic Law 11/1982, Supplementary Transfers to Canary Islands is a law passed on 10 August 1982 together with the Autonomy Statute of the Canary Islands. This law transfers to the Canary Islands some State government competencies, to offset the special circumstances of the Canary Islands, specifically insularity and remoteness. The capacity to regulate fishing in some areas or aquaculture was transferred with this law and Royal Decree 1938/1985. This has not been delegated to Cabildos.
- 8.
The permanent population slightly exceeds two million inhabitants in the Archipelago and more than ten million tourists visit the Canaries every year; see http://goo.gl/tcSY6i, accessed July 11 2013.
- 9.
- 10.
ORDER 26 September 2012 established a temporary closed season on the island of El Hierro (BOC, October 1st 2012 http://goo.gl/nIsOaZ). Order AAA/1990/2012, 13 September established a temporary closed season on fishing activities around the island of El Hierro, BOE September 21, 2012 (http://goo.gl/43vjeS), Order AAA/2788/2012, 21 December modified Order AAA/1990/2012, BOE 27 December 2012 (http://goo.gl/QS7gLZ).
- 11.
These are associations formed from partnerships between fisheries actors and other local private and public stakeholders, who managed the Axis 4 funds of the EMFF dedicated to achieving the sustainable development of fishing areas. Source: https://webgate.ec.europa.eu/fpfis/cms/farnet
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Pascual-Fernández, J.J., Chinea-Mederos, I., De la Cruz-Modino, R. (2015). Marine Protected Areas, Small-Scale Commercial Versus Recreational Fishers: Governability Challenges in the Canary Islands, Spain. In: Jentoft, S., Chuenpagdee, R. (eds) Interactive Governance for Small-Scale Fisheries. MARE Publication Series, vol 13. Springer, Cham. https://doi.org/10.1007/978-3-319-17034-3_21
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