ANSWER 1

Written response:

Knowledge Gaps identified by Dr Emily Ogier

1. Gap Type: Lack of socio-economic or valuation understanding

Details:
Changing fishing opportunities leading to changing costs:
As we experience changes in the availability and location of important fish stocks, key species are not found or being caught in the same areas, and new species might move in to and establish in an area where they have never been fished before. 

At some point, the degree of change in fishing opportunities means that some groups of fishers may lose or have reduced access, while others may gain greater access. This could come about because the gear one group uses is better able to catch the new species of fish which have moved into the area. or because the licensing arrangements only allow fishers to catch one species in one area and do not allow fishers to follow the fish or switch species. 

The costs for fishers can change as a result of needing to travel further or less, the need to buy different fishing gear or vessels, or buy different fishing licenses. As well, commercial fishers may find that the species they can catch have a lower market value so their revenues decrease. They might experience more storm events and wear and tear on fishing vessels and gears. And on top of this, any changes to licensing arrangements to increase flexibility and the ability for fishers to adapt may come at an initial cost (for example, to purchase a new type of license). 

Tracking, planning and addressing changing costs:
These rising costs matter.  Science can help! Further economic analysis of these changes costs is needed to understand how they can be minimised and whether they are even economically viable.  The value of fishing vessels, gear and licenses as forms of capital is also changing, as markets re-assess the uncertain conditions fisheries are experiencing. Fishers are being required to plan for fishing businesses under more uncertain conditions, so economic valuation information can help them plan more effectively.

Forecasts are being developed, like those in the Australian Futures of Seafood project, which predict the extent of change in fish stocks, weather conditions and seafood markets expected at regional scales. More fine-scale forecasts could help to anticipate changing fishing costs at local levels.

2. Gap Type: Lack of governance or policy framework

Details:
Changing fishing opportunities:
Access arrangements for fisheries include resource sharing arrangements (that is, sharing out the opportunity to fish between different sectors who catch the fish, such as commercial fishers and recreational fishers), and licensing arrangements which grant individual fishers with licenses to fish and also grant licenses to use types of fishing gear (or, equipment) and fish for certain species and in certain areas.

As we experience changes in the availability and location of important fish stocks, this opportunity is changing for many people who fish. key species are not found or being caught in the same areas, and so licenses may not match up with the fishing activity that is possible in a particular area. Or new species might move in to and establish in an area where they have never been fished before, so there are no arrangements in place to decide who gets what share of that fish resource. For example, species of snapper, king fish and sardine are establishing and being caught in the waters of Tasmania, in southern Australia, where they not been observed before. 

Forecasts are being developed, like those in the Australian Futures of Seafood project, which predict the extent of change expected at regional scales. More fine-scale forecasts could help to anticipate changing fishing opportunities at local levels.  

Equitable access:
Management of fisheries is designed to create opportunities for different groups at access and catch fish for supplying seafood, supporting fishing businesses, and providing recreational opportunities. Equitable access is about using fair and transparent processes to decide who gets access to the fish. Which groups get what level of access is a matter of policy for agencies managing those fish. Commonly, fishers who have a long history of fishing in an area or for a fish species are considered to deserve special consideration in ensuring they can continue to fish.

At some point, the degree of change in fishing opportunities means that some groups of fishers may lose or have reduced access, while others may gain greater access. This could come about because the gear one group uses is better able to catch the new species of fish which have moved into the area. or because the licensing arrangements only allow fishers to catch one species in one area and do not allow fishers to follow the fish or switch species. And the costs for fishers can change as a result of needing to travel further or less.

In these circumstances, changes are needed in resource sharing and licensing arrangements because the current arrangements no longer provide equitable access. This is a matter for agencies managing and regulating fisheries.  Changing laws and regulations for managing fisheries requires lengthy processes for review and consultation. But science can help!

There are a range of ways in which changes to fishing access arrangements can be made which set up fishers with more flexible and adaptive access, which will help them adapt to further changes. A range of studies in many countries (see Climate-Resilient Fisheries Planning Tool), including Australia (see CSIRO Fisheries Climate Adaptation Handbook) have identified some of these effective arrangements. But this type of analysis would be needed at the fishery-specific level too, to make sure the local regulations and legal arrangements and current access arrangements were understood.