A realist evaluation of the individual transferable quota system used in Finnish herring fisheries

Magnus Hanstén,Sakari Kuikka,Päivi Haapasaari,Sarah Kraak

doi:10.1093/icesjms/fsab196

Abstract

Abstract Rights-based management, such as the individual transferable quota (ITQ) system, is a popular approach for pursuing economic, social, and environmental sustainability in fisheries, with a variety of outcomes. This variety appears to be explained by the contextual differences between the targeted fisheries. By acknowledging that each fishery is unique, we need to apply holistic evaluation methods to understand the mechanisms causing different outcomes in fisheries interventions. Here, we apply the realist evaluation (RE) approach to evaluate the ITQ system implemented in the Finnish herring fishery. This study serves two purposes: (1) it outlines the realized outcomes of the Finnish management system in relation to the expected outcomes and (2) it introduces the RE method to the field of fisheries management. Measured in economic terms, the results indicate the new management system to be a success, although the benefits are more prominent for large-scale fishers. The context did not allow small-scale fishers to reap the theorized benefits of the ITQ system, leading to a somewhat more uncertain future for the sector. The RE approach proved to be a useful tool, well-suited to the evaluation of fisheries management systems.

Highlights

Considering the importance of fish as a source of food in a future where the global population is rising, it is vital to find environmentally, economically, and socially sustainable management solutions for fisheries
Only two managers planned the whole individual transferable quota (ITQ) system and, since their opinions and views appeared very similar in the initial discussions, we interviewed only one of them
We find the realist evaluation (RE) tool appropriate for this purpose, as it offers a deeper understanding of the changes brought about by an intervention in relation to the context

Summary

Introduction

Considering the importance of fish as a source of food in a future where the global population is rising, it is vital to find environmentally, economically, and socially sustainable management solutions for fisheries. There have been several suggestions for how to do this, and among them, rights-based management (RBM) is a popular approach (Cunningham, 2005). One prominent RBM approach is the individual transferable quota (ITQ) system, which utilizes economic incentives in an effort to achieve sustainable fisheries (Arnason, 2009). Quotas are considered as a commodity that gives the owner the right to fish a certain proportion of the total allowable catch (TAC) for a certain species, eliminating the “race to fish” and enhancing economic performance (Birkenbach et al, 2017; Anderson et al, 2019). Following the general recommendations of the EU Common Fisheries Policy (CFP; The European Parliament and the Council, Regulation (EU) No 1380/2013, 2013) and to overcome the declin-

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