UNCORRECTED PROOF
Ma ine Policy ](]]]])]]]–]]]
The pa adox o public pa icipa ion in fishe ies go e nance. The ising
numbe o ac o s and he de olu ion p ocess
Juan L. Sua
´ ez de Vi e o
a,
, Juan C. Rod ı´guez Ma eos
a
, D. Flo ido del Co al
b
a
Depa men o Human Geog aphy, Uni e si y o Se ille, Ma ı
´a de Padilla, s/n, 41004 Se ille, Spain
b
Depa men o Social An h opology, Uni e si y o Se ille, Ma ı
´a de Padilla, s/n, 41004 Se ille, Spain
Recei ed 26 Ma ch 2007; ecei ed in e ised o m 25 June 2007; accep ed 25 June 2007
Abs ac
Du ing he p ocess by which he numbe o ac o s was inc eased mani old as a esul o he de elopmen o ci il socie y, he fishe
communi y has los p ominence and impo ance, ading in o he wide spec um o in e es s wi h which i is compe ing o make i s oice
hea d in decision-making bodies and in he media. This esul s in wha could be e med he pa icipa ion pa adox— he g ea e he
numbe o ac o s, he smalle he ole each plays, and he lesse he impo ance o adi ional sec o s. Pa icipa ion and de olu ion do no
bea a linea ela ionship; g ea e de olu ion does no necessa ily esul in g ea e pa icipa ion, a claim ha has con ibu ed o he
p ocesses o de olu ion being o e alued. Go e nance, as in e ac ion be ween S a e, ci il socie y and he ma ke , pa adoxically migh
no s eng hen he mos adi ional o he in e es g oups.
2007 Published by Else ie L d.
Keywo ds: Fishe ies go e nance; Pa icipa ion; De olu ion; Co-managemen ; S akeholde s; Compe i ion.
1. In oduc ion
Recen de elopmen s ( om a ound he beginning o he
1990s onwa ds) in s udies on fishe ies managemen ha e
e ol ed a ound he ideas o decen aliza ion, de olu ion,
egionaliza ion and pa icipa ion.
1
The c isis in he fishing
indus y in de eloped economies and in Eu opean Union
membe coun ies in pa icula , has led o he managemen
sys ems hemsel es being ques ioned [1] as being incapable
o b inging a hal o he dec ease in esou ces. This has, in
u n, esul ed in he decline bo h o a eas dependen on
fishing and o fishe communi ies ha a e e e mo e
e icen abou he CFP. In sho , win c ises ha ha e bo h
biological and ins i u ional aspec s.
A se ies o esea ch s udies conduc ed as pa o he
a ious EU F amewo k P og ammes ha e in ecen yea s
explo ed possible al e na i es o he managemen sys ems
ha p edomina e in Eu opean ins i u ions [2,3] wi h a
single common denomina o — o s eng hen he pa icipa-
ion o he whole gamu o social ac o s in o de ha
e o ms, cha ac e ized by he he y educ ion in he fishing
e o , migh be aken on boa d and he EU fishing policy
hus gi en g ea e legi imacy and c edibili y. One wo king
hypo hesis ha has been accep ed is excessi e cen alism
on he pa o he Commission, he disad an age o which
is he dis ancing o hose i is adminis a ing. Conse-
quen ly, he need o begin a p ocess o de olu ion ha
migh allow he adi ional ac o s in he fishing indus y o
egain a lead ole is being looked a .
2
A ple ho a o
concep s ela ing o de olu ion and pa icipa ion ha e been
conside ed wi h he aim o es ablishing new egula o y
amewo ks o fishe ies managemen and he ela ionship
be ween he indus y and he ins i u ions.
This pape assumes he ollowing p emises: (i) Du ing
he p ocess by which he numbe o ac o s was inc eased
mani old as a esul o he de elopmen o ci il socie y, he
fishe , he fishe communi y, has los p ominence and
ARTICLE IN PRESS
www.else ie .com/loca e/ma pol
1
3
5
7
9
11
13
15
17
19
21
23
25
27
29
31
33
35
37
39
41
43
45
47
49
51
53
55
57
59
61
63
65
67
69
71
73
75
77
79
81
5þmodel JMPO : 713 P od:Type:FTP
pp:127ðcol: ig::NILÞ
ED:Dibyendu
PAGN:Bhaska a SCAN:
0308-597X/$ - see on ma e 2007 Published by Else ie L d.
doi:10.1016/j.ma pol.2007.06.005

Co esponding au ho . Tel.: +34 954551365; ax: +34 954556988.
E-mail add ess: [email p o ec ed] (J.L. Sua
´ ez de Vi e o).
1
A supe ficial examina ion o he li e a u e on his ma e published in
Ma ine Policy du ing he pe iod 1989–2006 shows ha he in e es o
social scien is s has been ocused on hese opics.
2
Fo he Commission’s de e mina ion and poli ical will in ca ying
h ough his de olu ion p ocess, see [4].
Please ci e his a icle as: Sua
´ ez de Vi e o JL, e al. The pa adox o public pa icipa ion in fishe ies go e nance. The ising numbe o ac o s and he
de olu ion.... Ma ine Policy (2007), doi:10.1016/j.ma pol.2007.06.005
UNCORRECTED PROOF
impo ance, ading in o he wide spec um o in e es s wi h
which i is compe ing o make i s oice hea d in decision-
making bodies and in he media. This esul s in wha could
be e med he pa icipa ion pa adox— he g ea e he
numbe o ac o s, he smalle he ole each plays, and he
lesse he impo ance o adi ional sec o s. (ii) Pa icipa-
ion and de olu ion, in a a ie y o exp essions, such as
egionaliza ion and decen aliza ion, do no bea a linea
ela ionship; g ea e de olu ion does no necessa ily esul
in g ea e pa icipa ion, a claim ha has con ibu ed o he
p ocesses o de olu ion being o e alued. (iii) The no ions
o de olu ion, pa icipa ion and co-managemen , which a
he u n o he cen u y ha e been miles ones in he p ocess
o pe ec ing fishe ies managemen , wha is now also a
mo e complex p ocess, howe e , ha e been included in he
go e nance pa adigm. Go e nance, as in e ac ion be ween
S a e, ci il socie y and he ma ke , pa adoxically migh no
s eng hen he mos adi ional o he in e es g oups.
The analysis he ein is s uc u ed in o h ee main ideas: (i)
decen aliza ion and pa icipa ion, (ii) co-managemen ,
and (iii) go e nance and go e nabili y, in which i is
possible o include he main con ibu ions made by social
sciences o fishe ies managemen in ecen yea s.
2. De olu ion: in e p e i e scheme
The way democ acy has de eloped and he deepe oo s
ha i has pu down o e ecen decades a e closely linked
wi h he p ocess o building wha is known as ci il socie y.
Rep esen a i e democ acy concen a ed decision-making
in la ge ins i u ions limi ing ci izen pa icipa ion o he
elec ion o ep esen a i es in S a e bodies. P o essional and
guild o ganiza ions which in ac i i ies like fishing had
played a highly ele an ole in managemen un il well in o
he 20 h cen u y [5] los he influence hey used o bea o
S a e ins i u ions (including scien ific ins i u ions) o he
poin ha in some Eu opean coun ies, he la e ha e
eached he s age whe e hey monopolize he unc ion o
fishe ies managemen [6]. Ne e heless, o e he las 20
yea s he e has been an e iden end owa ds a demand o
he pa icipa ion o indi iduals, in e es g oups and
associa ions in public a ai s h ough he deba e abou
pa icipa o y democ acy o di ec democ acy. The la es
cu en s in social sciences highligh he impo ance o
pa icipa ion in social mo emen s and in olun a y ac ion
ne wo ks as one o he elemen s ha de elops he capaci y
o indi iduals o assume sel -go e nmen .
3
This new ack owa ds managemen models wi h
g ea e pa icipa ion has led no only o a esu gence o
adi ional o ganiza ions in Eu ope (in Spain, he Fishe -
men’s Guilds), bu also he c ea ion o new ones, such as
p oduce o ganiza ions, al hough wi h pa chy esul s.
Gi en his se o ci cums ances, p oposals aimed a
educing he ole played by he S a e in a o o ei he
he a ious ac o s in ci il socie y o o he ma ke , ha e
been ans e ed o he sphe e o he fishing indus y in
such a way ha a ange o concep s such as egionaliza ion,
decen aliza ion,delega ion,subsidia i y,co-managemen ,
sha ing esponsibili ies,sel -managemen ,empowe men and
deconcen a ion, ha e been used in he design o al e na i e
managemen models.
All hese concep s can be included in an in e p e i e
scheme which ela es he deg ee o pa icipa ion o he
deg ee o cen aliza ion–decen aliza ion. In he case o
Spain
4
(Fig. 1), his allows he di e en exp essions o be
seen as he p ocess de elops whils also o e ing an
o e iew o hei ela i e posi ions on he Pa icipa ion–-
Decen aliza ion axis and on he pa h ha uns be ween
he cen alized S a e model (p e-1978) and a heo e ical
S a e which combines he highes le el o pa icipa ion wi h
he g ea es deg ee o decen aliza ion. These exp essions
o he de olu ion p ocess ela e o he gene al managemen
o fishe ies ac i i y (in which he a ious ie s o admin-
is a ion a e in ol ed) as well as o sub-sec o o ms o
fishing ha in an expe imen al o ci cums an ial way ha e
included ini ia i es wi h a g ea e in ol emen on he pa
o fishe s and o he agen s in he fishe ies chain.
I is e iden by he way in which fishe ies managemen
has e ol ed in he a ious Eu opean coun ies ha
p og ess om g ea e decen aliza ion o g ea e sel -
go e nmen is no necessa ily made in a s aigh line, and
he example o he Eu opean Union, whe e he CFP
in ol es he loss o ans e o S a e so e eign y o EU
ins i u ions, co obo a es his. In a simila ashion, he
di e en op ions o pa icula ypes o de olu ion do no
equi e a p og essi e, s ep-by-s ep cou se owa ds g ea e
decen aliza ion o egionaliza ion.
5
In o he ega ds, as
can be seen om he cases o Spain, F ance, No way,
Denma k and he Uni ed Kingdom,
6
i is possible o a
high le el o poli ical and adminis a i e decen aliza ion
o coexis wi h a limi ed deg ee o pa icipa ion on he pa
o social agen s and, in sensu con a io, likewise cen alized
S a e models wi h a highly de eloped cul u e o pa icipa-
ion. Pa icipa ion as an exp ession o poli ically ad anced
socie ies can, o an ex en , be unde s ood as an indepen-
den a iable o he S a e o ganiza ional model bu always,
na u ally, in he con ex o he mode n democ a ic S a e
wi h di ec ep esen a ion (Fig. 2).
ARTICLE IN PRESS
JMPO : 713
1
3
5
7
9
11
13
15
17
19
21
23
25
27
29
31
33
35
37
39
41
43
45
47
49
51
53
55
57
59
61
63
65
67
69
71
73
75
77
79
81
83
85
87
89
91
93
95
97
99
101
103
105
107
109
111
113
3
Sel -go e nmen means he eedom o go e n h ough he absence o
con ol.
4
Spain is peculia in he sense ha i has unde gone a adical e o m in
he way he S a e is poli ically and e i o ially o ganized ( he 1978
Cons i u ion), going om being a cen alized s uc u e o a highly
decen alized one (Au onomous Communi ies) almos akin o a ede al
S a e.
5
The possibili y o mo ing om cen alized managemen o co-
managemen is shown in [7].
6
The Eu opean Sha ing Responsibili ies in Fishe ies Managemen [8]
p ojec p oposes and assesses al e na i e fishe ies managemen models
wi h a g ea e deg ee o decen aliza ion wi h ega d o EU and S a e
adminis a ions, and g ea e pa icipa ion by he a ious s akeholde s.
J.L. Sua
´ ez de Vi e o e al. / Ma ine Policy ](]]]])]]]–]]]2
Please ci e his a icle as: Sua
´ ez de Vi e o JL, e al. The pa adox o public pa icipa ion in fishe ies go e nance. The ising numbe o ac o s and he
de olu ion.... Ma ine Policy (2007), doi:10.1016/j.ma pol.2007.06.005
UNCORRECTED PROOF
3. Co-managemen
Co-managemen is wi hou doub a key concep in he
ecen de elopmen o heo y and p axis in fishe ies
managemen . Fi s ly, because o he concep s ha a e
ele an o he scien ific discussion on fishe ies manage-
men concu in co-managemen , and dis inguish i om
o he mo e echnical and limi ed e ms, such as pa icipa-
o y/collabo a i e/coope a i e managemen and communi y
based managemen [9]. And, secondly, because he way he
concep i sel has e ol ed om he 1980s o he p esen day
is an indica ion o he di ec ion o he p e alen poin s o
ARTICLE IN PRESS
JMPO : 713
1
3
5
7
9
11
13
15
17
19
21
23
25
27
29
31
33
35
37
39
41
43
45
47
49
51
53
55
57
59
61
63
65
67
69
71
73
75
77
79
81
83
85
87
89
91
93
95
97
99
101
103
105
107
109
111
113
Fig. 1. Ra io be ween pa icipa ion and decen aliza ion. The si ua ion in Spain.
Fig. 2. Ra io be ween pa icipa ion and decen aliza ion in some Eu opean coun ies.
J.L. Sua
´ ez de Vi e o e al. / Ma ine Policy ](]]]])]]]–]]] 3
Please ci e his a icle as: Sua
´ ez de Vi e o JL, e al. The pa adox o public pa icipa ion in fishe ies go e nance. The ising numbe o ac o s and he
de olu ion.... Ma ine Policy (2007), doi:10.1016/j.ma pol.2007.06.005
UNCORRECTED PROOF
iew in scien ific discou se ega ding fishe ies manage-
men —an ad ance owa ds pa icipa ion by new social
agen s and he p og essi e decen aliza ion o he decision-
making p ocesses [10]. The e a e h ee key elemen s o his
concep , which was de eloped by specialis li e a u e
du ing he 1990s: (i) he need o decen aliza ion gi en
he ailu e o he cen alis sys em domina ed by he S a e
as a poli ical agen which wen be o e, (ii) he impo ance
o social agen s’ pa icipa ion in he poli ical p ocess, and
(iii) he ecogni ion o olk managemen sys ems [11]. These
h ee ea u es should be e gua an ee he fishe s’ con-
fidence in he poli ical sys em, which, acco ding o co-
managemen pa adigm heo is s, would hen esul in
measu es being be e applied.
I is a ac ha he in ense use o he e m has led o
g ea e ambigui y, whe eby i has become a label o a
b oad gamu o p oposals, bo h as ega ds objec i es and
he social agen s and ins i u ions in ol ed in he p ocess.
Because o his, se e al pape s ha e made g ea e o s o
define he e m heo e ically [12] and o classi y di e en
ypes o co-managemen [13,14]. I we ake as ou base
e e ence he defini ion o e ed by Jen o in 1989 [15,16],
co-managemen is unde s ood as some kind o pa ne ship
be ween he adminis a ion and he associa ions ha
ep esen he fishe s o sha ing esponsibili y o manage-
men asks, and i is specifically his ha dis inguishes i
om consul a i e a angemen s. The need o augmen he
poli ical e ec i eness and legi imacy o adi ional op–-
down managemen sys ems, especially h ough an inc ease
in he compliance o he fishe s, was he p ime a gumen o
he p oposal, and his is how i has pe sis en ly been seized
upon in subsequen adi ion.
Bu inno a i e elemen s a e none heless impo an in
scien ific discou se. The mos impo an o hese has been
he opening up o he co-decision poli ical p ocess o new
social and ins i u ional subjec s, o he poin ha he idea
o pa ne ship be ween fishe s and he adminis a ion has
been qui e clea ly su passed. As such, in he second hal o
he 1990s [13,17], co-managemen was unde s ood as he
esul no jus o collabo a ion be ween use s g oups (wi h
hese no longe being explici ly limi ed o he fishe s) and
he go e nmen , bu also agencies and esea ch ins i u ions.
F om his momen on, he concep b oadens, especially
wi h ega d o who ough o o m pa o he sys em. This
op ion is clea ly defined in Mikalsen and Jen o [18]—
fishe ies managemen should in ol e new social agen s
h ough mo e inclusi e and pa icipa o y me hodology
ha anscends sec o al limi s. I should ake as i s basis
he s akeholde app oach; ha is, i should ake in o
conside a ion all he social and ins i u ional agen s ha
ha e a legi ima e igh o be consul ed in fishe ies policy
decisions in ecogni ion o he ac ha fish s ocks and
ma i ime e i o y a e a common p ope y esou ce; o wi :
local communi ies, en i onmen al o ganiza ions and agen-
cies, esea che s, consume s, he media, ep esen a i es o
he fishe ies chain and o he ma i ime indus ies, and
u u e gene a ions. The ocus also es ablishes ha he
sys em o ela ionships be ween hese subjec s should
emain unde S a e con ol, wi h he S a e being p ima ily
unde s ood o be an a bi e in a complex assemblage a he
han one o he co ne s ones o he sys em occupying a
hie a chical posi ion.
Ha ing come hus a , i seems e iden ha he concep
o co-managemen should be associa ed wi h: (a) he
s eng hening o he local pe spec i e, in he sense ha he
communi y should be es o ed as a key domain in
managemen [19,20]; (b) he delega ion o powe om
go e nmen al agencies o social and ins i u ional agencies
linked o he fishe ies chain and local communi ies; ha is,
i should be associa ed wi h he empowe men o hese e y
agen s [21]; (c) mo e inclusi e and anspa en ins i u ions,
mo e democ a ic ins umen s; and (d) a poli ical sys em
which s ee s clea o he cogni i e exclusi eness o science
and inco po a es o ms o ‘‘ olk’’ knowledge; and all he
aspec s ha his en ails [22,23].
All he po en iali ies o co-managemen ha ing been se
ou , i is now necessa y o poin ou he di ficul ies ha
exis o i o be implemen ed: (a) he need o wo k on a
a ie y o poli ical and e i o ial scales; (b) adap a ion o
he wide a ie y o social agen s’ needs; (c) he eluc ance o
ARTICLE IN PRESS
JMPO : 713
1
3
5
7
9
11
13
15
17
19
21
23
25
27
29
31
33
35
37
39
41
43
45
47
49
51
53
55
57
59
61
63
65
67
69
71
73
75
77
79
81
83
85
87
89
91
93
95
97
99
101
103
105
107
109
111
113
T adi ional Managemen Model Go e nance Model
Technical ool (managemen ) Global, holis ic pe spec i e (go e nance)
Based on “closed” knowledge (bio-
economic science)
Based on “open” knowledge ( he in e ac ion
be ween science and social o olk knowledge)
Top-down Mul i-le el ( om global o local le el)
P e-es ablished alues (economic
e iciency, echnological
de elopmen , e c.)
Values unde cons uc ion (social and
en i onmen al sus ainabili y; cul u al di e si y;
poli ical e ec i eness; democ acy)
S a ic powe ela ionships (S a e,
associa ions, ma ke lobbies).
T adi ional ac o s (go e nmen
agencies, ishe s)
Dynamic powe ela ionships (de olu ion,co-
pa icipa ion, accoun abili y, policy ne wo ks,
e c.)
New ac o s (ci izen, en i onmen al, mass media,
and non-ex ac i e ishe y sec o ep esen a i e
o ganiza ions)
Bioeconomic pa adigme
(Maximum sus ainable yield)
In eg a i e app oach
(Ecosys em base app oach)
Fig. 3. Compa ison be ween adi ional managemen model and go e nance model.
J.L. Sua
´ ez de Vi e o e al. / Ma ine Policy ](]]]])]]]–]]]4
Please ci e his a icle as: Sua
´ ez de Vi e o JL, e al. The pa adox o public pa icipa ion in fishe ies go e nance. The ising numbe o ac o s and he
de olu ion.... Ma ine Policy (2007), doi:10.1016/j.ma pol.2007.06.005
UNCORRECTED PROOF
he S a e o delega e a sha e o powe and especially o
becoming sensi ized o local/ egional condi ions (gi en i s
cen alizing oca ion); (d) he s a us quo o he powe
ela ionships in he fishe ies chain a he cu en ime, wi h
his o ical con ol by he ma ke ing and indus ializa ion
agen s g owing due o he p ocesses o globaliza ion; (e) he
ep esen a i eness o he fishe ies o ganiza ions and hei
lack o poli ical coo dina ion; ( ) he lack o p io
expe iences a e a long pe iod o ime wi h a cen alized
managemen model; and (g) he e y ambigui y o he
concep , unde which a wide ange o expe iences a e
p esen ed. Bea ing in mind all hese di ficul ies, i migh be
conjec u ed ha he ailu es o p ema u e and insu ficien ly
obus co-managemen expe iences pu he po en ial
exis ence o he ocus a isk. Be ha as i may, he
heo e ical de elopmen o he concep owa ds a pe ma-
nen opening up o social agen s as pa icipan s in he
decision-making p ocess allows us o accep wha we ha e
e e ed o as he pa icipa ion pa adox. The u h o he
ma e is fishe s ha e p og essi ely los hei decision-
making capaci y and poli ical p esence as hey ha e had o
compe e wi h he iewpoin s, objec i es and s a egies o
o he ac o s who ha e ecen ly been in i ed o ake a
poli ical pa . (Fig. 3).
4. Go e nance and go e nabili y
Go e nance and go e nabili y ep esen a hi d impo -
an miles one in his discou se on he ole o social
pa icipa ion in fishe ies managemen as hey b ing
oge he in one way o ano he hese de olu ion and co-
managemen concep s and app oaches. In simple e ms, he
go e nance/go e nabili y pa adigm equa es o a la ge
‘‘mel ing-po -concep ’’ in o which a e pou ed all he
p eceding app oaches o fishe ies managemen and he
p inciples ha inspi e hem: pa icipa ion, decen aliza ion
and flexibili y.
Go e nance is on occasion in e p e ed as an ac ion
execu ed by he go e nmen (when his is unde s ood o be
a g ouping o o mal execu i e powe ins i u ions),
al hough i is much mo e han his.
7
Kooiman [25] defined
i as he ee play o pa icipa ion and ade-o be ween he
a ious social ac o s, and be ween he public and p i a e
sec o s, wi hou adi ional go e nmen in e en ion, ‘‘co-
o dina ion wi hou a coo dina o ’’ o a ype o ‘‘go e ning
wi hou Go e nmen ’’ [26,27]. Go e nance could he e o e
be defined as a kind o social coo dina ion (as opposed o
coo dina ion based on he ma ke o based on poli ics) ha
is bo n ou o he cons an in e ac ion be ween social
agen s o all ypes. The concep is associa ed wi h he
capaci y o sel -coo dina ion ha ne wo ks made up o a
wide a ie y o public and p i a e, S a e and ansna ional
o ganiza ions and bodies possess [28].
F om he 1990s onwa ds, and especially a e 2000, he
concep o go e nance bu s on o he ocean and fishe ies
managemen scene,
8
in an a emp o p o ide an explana-
ion o a dynamic, complex, e e -changing, o en c oss-
bo de eali y in which social and ins i u ional g oups
(S a e, ma ke , ci il socie y) wi h gene ally di e se in e es s
in e ac . The concep o go e nance seems o be mo e
ela ed o he need o manage a complex socio-economic
and physical eali y and o he achie emen o ce ain goals
ha cha ac e ize he pos -mode n e a [32].
De elopmen g own ou o adi ional sys ems o fish-
e ies managemen , in which he S a e was key, and whe e
some social ac o s (fishe s, basically) we e some imes aken
in o conside a ion, has mo e ecen ly u ned in o mo e
flexible managemen , wi h a mo e p ominen ole played
by he ma ke and i s esou ce assigna ion mechanisms.
Ocean and fishe ies go e nance is, a e all, ounded on an
al eady e y obus epis emological p oduc and on a se ies
o key p inciples (sus ainabili y, pa icipa ion, anspa -
ency, accoun abili y, flexibili y and p ecau ion, o name
bu some
9
) ha ha e a o ded i a measu e o p es ige in
he scien ific communi y and ha p o ide adequa e guide-
lines o analysis ( he desc ip i e aspec ) and in e en ion
( he p esc ip i e aspec ). O all he di e en ypes o
go e nance—hie a chical go e nance (based on adminis-
a i e a ionali y), ma ke go e nance (based on economic
a ionali y) and pa icipa o y go e nance ( ounded on
social consensus and ‘‘democ a ic p agma ism’’)—i is he
hi d and las o hese ha would seem o be p e ailing
oday, wi h i s pos -ma e ialis ic ounda ions, he alue o
esponses based on collec i e knowledge and ac ion, he
need o decen aliza ion and he loss o s eam o he o he
wo models [37].
Go e nabili y is a di e en concep , bu one which
complemen s go e nance. I e e s o issues such as o de ,
s abili y, e ficiency and he legi imacy o a managemen
sys em; ha is, he e ec i eness wi h which he ange o
socio-poli ical ac o s a i e a decisions and he capaci y o
ins i u ions and go e nmen o apply and implemen hem.
In sho , go e nabili y would be a capaci y o an a ibu e
o go e ning (associa ed wi h some public powe o a
poli ical sys em), whe eas go e nance e e s abo e all o
he s uc u es (game ules) and p ocesses which condi ion
he pa icipa ion and in e ac ion o he a ious socio-
poli ical ac o s [38]. Go e nabili y comp ises bo h he
poli ical sys em o managemen (go e nance) and he
ARTICLE IN PRESS
JMPO : 713
1
3
5
7
9
11
13
15
17
19
21
23
25
27
29
31
33
35
37
39
41
43
45
47
49
51
53
55
57
59
61
63
65
67
69
71
73
75
77
79
81
83
85
87
89
91
93
95
97
99
101
103
105
107
109
111
113
7
Fo example, one o he hings ha S oke [24] pu s o wa d is he idea
ha go e nance could de elop no only om o mal ins i u ions, bu also
om o he s. He also asse s ha he e is an in e dependence be ween he
a ious ac o s in his model and ha sel -o ganized ne wo ks o social
ac o s p og essi ely gain impo ance.
8
F om a quick e iew o e e ences on in e en ion policies and
mechanisms in he ocean en i onmen , i can be seen ha a icles and
books w i en du ing he 1970s and 1980s bea names ha p e e en ially
include he concep s o ma ine policy o ocean managemen , whe eas om
he 1990s onwa ds he concep o ocean go e nance p edomina es in i les
[29–31].
9
These p inciples can be looked up in a numbe o documen s and
a icles [33–36].
J.L. Sua
´ ez de Vi e o e al. / Ma ine Policy ](]]]])]]]–]]] 5
Please ci e his a icle as: Sua
´ ez de Vi e o JL, e al. The pa adox o public pa icipa ion in fishe ies go e nance. The ising numbe o ac o s and he
de olu ion.... Ma ine Policy (2007), doi:10.1016/j.ma pol.2007.06.005

UNCORRECTED PROOF
socio-economic eali y ha is o be managed, as well as
in e ac ion be ween bo h.
A he cu en ime, fishing is bo h a ec ed and
s uc u ed by h ee ins i u ional o de s (S a e, communi y,
ma ke ), and he e has been a no able e ea o S a e
ins i u ions and he lack o adap a ion o hei s uc u es o
he eali y o he ma ke and ecology whils a he same
ime he e has also been an inc ease in he numbe o
ma ke solu ions (a ques o e ficiency, ITQs and so on)
[6]. Gi en hese ci cums ances, he big issue is he dis o ed
in e p e a ion o fishe ies go e nance esul ing om he
ac ha adi ional public fishe ies managemen has been
eplaced by ei he mo e di use p ocesses o o he s ha a e
mo e s ongly linked o he ma ke , o la ge ansna ional
companies and s ong economic lobbies, wi h he mo e
social aspec s being somewha sidelined. In sho , fishe ies
managemen is now mo e flexible and ‘‘ ee’’, bu he
gua an ees o sa egua ding socio-economic and en i on-
men al igh s ha e been excessi ely minimized, wi h
accoun abili y being mo e and mo e di usely sp ead, and
p oduce pa icipa ion dilu ed in a wide and complex
spec um o social ac o s. The e a e, na u ally, some
specific s uc u es and game ules (fishe ies go e nance
10
).
Ne e heless, g ea e e ec i eness, capaci y and legi imacy
in he implemen a ion o he decisions ha a ec bo h he
sec o and, especially, hose whose li elihoods depend on i
(fishe ies go e nabili y), s ill emain o be achie ed. The
ques ion is whe he he la e o he wo will be achie ed o
no on he basis o he ‘‘me can ilis ’’ go e nance ha is
p e ailing [40] and h ough a di use sys em o esponsi-
bili ies in which he weakes social ac o s pe cei e
pa icipa ion mo e as he o ic han a angible eali y.
5. Concluding ema ks
The eme gence o managemen o mulae ha seek
g ea e social pa icipa ion as pa o he de olu ion
p ocess is esul ing in a widening o he spec um o social
ac o s. One indica o ha illus a es his is he eme gence
o he gende pe spec i e, which has allowed a social g oup
no adi ionally aken in o conside a ion in fishe ies
managemen o gain p ominence. Fo his eason, i would
be necessa y o edefine he game ules no only because o
he e ec ha he inc ease in he numbe o pa icipan s is
ha ing, bu also because o he complexi y ha is inhe en
in he exis ence o a ne wo k o in e ac ions be ween
adi ional and eme ging ac o s who do no always sha e
common in e es s.
Co-managemen can be unde s ood o be a ocus a he
han a numbe o s ic ly echnical solu ions [41] ha fi s in
wi h he new in e ac i e go e nance app oaches ha a e
equi ed o ca e o he complex biological, socio-
economic, e i o ial, poli ical and cul u al ela ionships
ha in one way o ano he bo h shape and a e shaped by
he ishe ies chain when his is seen in a complex way [42].I
is, he e o e, a pe spec i e ha is in keeping wi h he new
concep o sus ainabili y as i appea s in he Code o
Conduc o Responsible Fishing (FAO, 1995) and which
subsequen ly has been exp essed in e hical e ms in he
fishe ies domain [43].
The pa adigm o go e nance could in me apho ical
e ms be in e p e ed as a kind o ma yoshka o ‘‘nes ed
doll p inciple’’
11
; ha is, a ocus ha , pe haps no always
in en ionally, bo h assumes and subsumes p eceding
managemen o mulae in an a emp o cons uc a b oade
concep capable o aking on boa d he e e mo e complex
pa icipa o y p ocess. I could be said ha he de olu ion
app oach and subsequen app oaches ela ing o co-
managemen and, mos ecen ly, o go e nance/go e n-
abili y, se e o swell he anks o managemen p esc ip-
ions, which ha e been p og essi ely g owing, and which,
despi e ad oca ing sel - egula ion, sha ed managemen ,
social dialogue and he p ese a ion o he en i onmen ,
un he isk o being discou se a he han eal poli ical
in e en ional p axis o he fishe ies c isis [41].
Re e ences
[1] C ean K, Symes D, edi o s. Fishe ies managemen in c isis. Ox o d:
Fishing News Books/Blackwell Science; 1996.
[2] Eu opean Commission. Dissemina ion o he esul s o biological
s udies 1997–2000. B ussels: Eu opean Comisio
´n/Fishe ies and
Ma i ime A ai e, Di ec o a e Gene al; 2004.
[3] Eu opean Commission. Synopsis o selec ed R & D p ojec s in he
field o fishe ies and aquacul u e. Ag icul u e and Fishe ies including
ag o-indus y, ood echnology, o es y, aquacul u e and u al
de elopmen . FAIR 1994–98. EUR 18949 EN. Luxembou g: Fish-
e ies Di ec o a e-Gene al; 2001.
[4] G ay T, Ha cha d J. The 2002 e o m o he Common Fishe ies
Policy’s sys em o go e nance- he o ic o eali y? Ma ine Policy
2003;27(6):545–54.
[5] Flo ido D. Un siglo de polı´ ica e ins i uciones pesque as en
Andalucı´a. Se illa: Jun a de Andalucı´a/Fundacio
´n Blas In an e;
2002.
[6] Apos le RA, e al. Communi y, s a e, and ma ke on he no h
A lan ic im. Challenges o mode ni y in he fishe ies. To on o:
Uni e si y o To on o P ess; 1998.
[7] Symes D, Phillipson J. Co-go e nance in EU fishe ies: he complexi y
and di e si y o fishe men’s o ganisa ions in Denma k, Spain and
UK. In: Kooiman J, e al., edi o s. C ea i e go e nance. Oppo u-
ni ies o fishe ies in Eu ope. Alde sho : Ashga e; 1999.
[8] Van Hoo L, Hoe nagel E, an de Schans JW, Raakjæ Nielsen J,
Ch is ensen AS, S e d up-Jensen S, e al. Sha ing esponsibili ies in
fishe ies managemen . Final epo . The Hague: LEI; 2005.
[9] Mulekon LV. An ins i u ional de elopmen p ocess in communi y
based coas al esou ce managemen : building he capaci y and
oppo uni y o communi y based co-managemen in a small-scale
fishe ies communi y. Ocean and Coas al Managemen
1999;42:439–56.
[10] Wilson DC, Nielsen JR, Dengbol P, edi o s. The fishe ies co-
managemen expe ience: accomplishmen s, challenges and p ospec s.
Bos on: Kluwe Academic Publishe s; 2003.
ARTICLE IN PRESS
JMPO : 713
1
3
5
7
9
11
13
15
17
19
21
23
25
27
29
31
33
35
37
39
41
43
45
47
49
51
53
55
57
59
61
63
65
67
69
71
73
75
77
79
81
83
85
87
89
91
93
95
97
99
101
103
105
107
109
111
113
10
An analysis o fishe ies go e nance and poli ical ins i u ions can be
ound in [39].
11
The me apho ical use o Russian ma yoshkas deno es a ecognizable
ela ionship o ‘‘simila objec -wi hin-simila objec ’’ which could be
applied o he cons uc ion o social and poli ical o mula ions.
J.L. Sua
´ ez de Vi e o e al. / Ma ine Policy ](]]]])]]]–]]]6
Please ci e his a icle as: Sua
´ ez de Vi e o JL, e al. The pa adox o public pa icipa ion in fishe ies go e nance. The ising numbe o ac o s and he
de olu ion.... Ma ine Policy (2007), doi:10.1016/j.ma pol.2007.06.005
UNCORRECTED PROOF
[11] McGoodwin JR. C isis in he wo ld’s fishe ies: people, p oblems, and
policies. S an o d, CA: S an o d Uni e si y P ess; 1990. p. 235.
[12] Noble BF. Ins i u ional c i e ia o co-managemen . Ma ine Policy
2000;24:69–77.
[13] Sen S, Nielsen JR. Fishe ies co-managemen : a compa a i e analysis.
Ma ine Policy 1996;20(5):405–18.
[14] Nielsen JR, e al. Fishe ies co-managemen —an ins i u ional
inno a ion? Lessons om Sou h Eas Asia and Sou he n A ica.
Ma ine Policy 2004;28:151–60.
[15] Jen o S. Fishe ies co-managemen : delega ing go e nmen espon-
sibili y o fishe men’s o ganisa ions. Ma ine Policy
1989;13(2):137–54.
[16] Pinke on E, edi o . Co-ope a i e managemen o local fishe ies. New
di ec ions o imp o ed managemen and communi y de elopmen .
Vancou e : B i ish Columbia P ess; 1989.
[17] Jen o S, McCay BJ, Wilson DC. Social heo y and fishe ies co-
managemen . Ma ine Policy 1998;22(4/5):423–36.
[18] Mikalsen KH, Jen o S. F om use s g oups o s ake holde s? The
public in e es in fishe ies managemen . Ma ine Policy
2001;25:281–92.
[19] McCay BJ, Jen o S. Ma ke o communi y ailu e? C i ical
pe spec i es on common p ope y esea ch. Human O ganiza ion
1998;57(1):21–39.
[20] Jen o S. The Communi y: a missing link o fishe ies managemen .
Ma ine Policy 2000;24:53–9.
[21] Jen o S. Fishe ies co-managemen as empowe men . Ma ine Policy
2005;29:1–7.
[22] Pa
´lsson G. Technology, p ac ical knowledge and ecological expe ise.
In: Mon es del Cas illo A
´, edi o . An opologı´a de la pesca. Deba es
en el Medi e a
´neo. Uni e sidad de Mu cia, 1999.
[23] Neis B, e al. An in e disciplina y me hod o collec ing and
in eg a ing fishe s’ ecological knowledge in o esou ce managemen .
In: Newell D, Omme RE, edi o s. Fishing places, fishing people:
adi ions and issues in Canadian small-scale fishe ies. To on o:
Uni e si y o To on o P ess; 1999. p. 217–38.
[24] S oke G. Go e nance as heo y: fi e p oposi ions. In e na ional
Social Sciences Jou nal 1998;155:17–28.
[25] Kooiman J. Social–poli ical go e nance: o e iew, eflec ions and
design. Public Managemen Re iew 1999;1:67–92.
[26] Rosenau J, Czempiel EO, edi o s. Go e nance wi hou go e nmen :
o de and change in wo ld poli ics. Camb idge: Camb idge Uni-
e si y P ess; 1992.
[27] Rhodes RAW. The new go e nance: go e ning wi hou go e nmen .
Poli ical S udies 1996;44(4):652–67.
[28] Valle
`s JM. Ciencia polı´ ica. Una in oduccio
´n. Ba celona: A iel;
2000.
[29] Cicin-Sain B. Essay: a na ional ocean go e nance s a egy o he
Uni ed S a es is needed now. Coas al Managemen 1994;22:171–6.
[30] Kimball LA. In e na ional ocean go e nance: using in e na ional law
and o ganiza ions o manage ma ine esou ces sus ainably. Gland,
Swi ze land/Camb idge, UK: IUCN; 2001.
[31] Hinds L. Oceans go e nance and he implemen a ion gap. Ma ine
Policy 2003;27(4):349–56.
[32] Vallega A. Ocean go e nance in pos -mode n socie y—a geog aphi-
cal pe spec i e. Ma ine Policy 2001;25(6):399–414.
[33] Lisbon P inciples. In: P oceedings o he con e ence ecological
economics and sus ainable go e nance o he oceans, Lisbon,
Po ugal, 1997, /h p://www.ids.o g.au/cne ill/ma ineLisbonP in-
ciples.h mS.
[34] Cos anza R, e al. P inciples o sus ainable go e nance o he oceans.
Science 1998;281:198–9.
[35] Mann Bo gese E. The oceanic ci cle: go e ning he seas as a global
esou ce. Tokyo/New Yo k/Pa is: Uni ed Na ions Uni e si y P ess;
1998.
[36] Mann Bo gese E, Baile F. Ocean go e nance: legal, ins i u ional and
implemen a ion conside a ions. A epo p epa ed o he ship and
ocean ounda ion o Japan. Hali ax, Canada: Dalhousie Uni e si y—
In e na ional Ocean Ins i u e; 2001.
[37] G ay TS. Theo ising abou pa icipa o y fishe ies go e nance. In:
G ay TS, edi o . Pa icipa ion in fishe ies go e nance. Do d ech ,
The Ne he lands: Sp inge ; 2005. p. 1–25.
[38] C uz CN. Gobe nabilidad y ‘go e nance’ democ a
´ icas: el con uso y
no siemp e e iden e ı´nculo concep ual e ins i ucional. Desa ollo
humano e ins i ucional en Ame
´ ica La ina, 2001. p. 23. /h p://
www.iigo .o g/dhial/?p=23_05S.
[39] Sua
´ ez de Vi e o JL, Rod ı´guez Ma eos JC, Flo ido del Co al D.
In e nacional ins i u ions. In: Kooiman J e al., edi o s. Fish o li e.
In e ac i e go e nance o fishe ies. Ams e dam: Ams e dam Uni-
e si y P ess, MARE publica ion se ies, No. 3; 2005. p. 197–216.
[40] Rod ı´guez Ma eos JC. Jus icia social y es uc u as de pode en la
gobe nanza de la pesca. Jaina en lı´nea 2002;13(1):17–23 /h p://
e zna.uacam.mx/epomex/pd /jaina13-1.pd S.
[41] Jen o S. Beyond fishe ies managemen : he Ph one ic dimension.
Ma ine Policy 2005;30:671–80.
[42] Kooiman J, e al., edi o s. Fish o li e. In e ac i e go e nance o
fishe ies. Ams e dam: Ams e dam Uni e si y P ess; 2005.
[43] FAO. E hical issues in fishe ies. FAO e hics se ies, 4. Rome: Food
and Ag icul u e O ganiza ion o he Uni ed Na ions; 2005.
ARTICLE IN PRESS
JMPO : 713
1
3
5
7
9
11
13
15
17
19
21
23
25
27
29
31
33
35
37
39
41
43
45
47
49
51
53
55
57
59
61
63
65
67
69
71
73
75
J.L. Sua
´ ez de Vi e o e al. / Ma ine Policy ](]]]])]]]–]]] 7
Please ci e his a icle as: Sua
´ ez de Vi e o JL, e al. The pa adox o public pa icipa ion in fishe ies go e nance. The ising numbe o ac o s and he
de olu ion.... Ma ine Policy (2007), doi:10.1016/j.ma pol.2007.06.005