How to reorganize governance to support ecosystem-based fisheries management? The cases of Baltic salmon and herring

The EU Common Fisheries Policy (CFP) has adopted an ecosystem-based approach to fisheries management (EBFM), to minimize the negative impacts of fishing activities on the marine ecosystem. The approach entails a shift from single-species management to a holistic one that considers the interaction between ecosystem components and between the ecosystem and society, and strives for integrated and adaptive management, involving stakeholders. The implementation of EBFM is, however, challenging due to e.g. mismatch between governance and ecosystem boundaries, and the resulting poor understanding of the social-ecological systems (SES). This paper aims to explore what requirements EBFM poses for governance at different levels and to assess how reorganizing governance could, in turn, improve SES understanding. We apply the theoretical framework of governability (Kooiman et al.) to qualitative empirical material and literature concerning Baltic salmon and herring fisheries to 1) analyze the complexity, diversity and dynamics of the fisheries systems to be governed, 2) identify elements, modes and orders of governance needed for the EBFM of the SES, and 3) characterize patterns of interactions for the governing system to match the scale and scope of the system to be governed. Baltic salmon and herring have a predator-prey relationship, and a problem of high dioxin levels in common. However, the relationship of the fisheries with society differs in terms of socio-cultural values and use. Finally, we assess the governability of these fisheries in the framework of the EBFM, given the CFP aims of ensuring social-ecological wellbeing and food security and safety.