Assessing Equity in the Distribution of Fisheries Management Benefits Data and Information Availability (2024) / Chapter Skim
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Provide equitable delivery of services; and (3) Prioritize equity and environmental justice in meeting its mandated mission."1 As part of its effort to address the stated goals and advance equity, NMFS requested that the National Academies of Sciences, Engineering, and Medicine provide an independent, third-party review of the data and information needs and availability for assessing equity in the distribution of benefits derived from current fisheries management practices (Box S-1)
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WHAT IS EQUITY? Equity can be thought of as consisting of multiple elements: distributional equity, procedural equity, recognitional equity, and a cross-cutting element referred to as contextual equity (Figure S-1)
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As an example, in the fisheries management context, this may involve recognition of Indigenous rights, including fulfilling the trust obligation to federally recognized Tribes, and the value of Indigenous Knowledge and Traditional Knowledge. As a second example, recognitional equity may involve both the recognition and potential management consequences of the imbalance in power among individuals and groups.
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Finally, National Standard 8 calls for consideration of geographic communities and their participation in fisheries as well as evaluating economic impacts on fishing communities. BOX S-2 Select Relevant National Standards National Standard 1 – Optimum Yield "Conservation and management measures shall prevent overfishing while achieving, on a continuing basis, the optimum yield from each fishery for the United States fishing industry." National Standard 2 – Scientific Information "Conservation and management measures shall be based upon the best scientific information available." National Standard 4 – Allocations "Conservation and management measures shall not discriminate between residents of different states.
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FINDING 2-3: Existing authority granted to NMFS by the MSA, the National Standards, NEPA, executive orders, and other instruments provides the agency with a clear mandate for a multidimensional and contextual approach to centering equity in its work. RECOMMENDATION 2-1: The National Marine Fisheries Service should develop and implement a contextual, place-based, and participatory approach to identifying and inte grating multi-dimensional equity considerations into decision-making processes in ways that balance previous and more recent mandates.
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The committee views the suggested equity guidance documents as working in a similar fashion. RECOMMENDATION 3-3: The National Marine Fisheries Service (NMFS)
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." Along with monetary benefits, diverse nonmonetary benefits to communities are associated with fisheries management. Fishing communities are diverse, spanning from small artisanal communities in the Western Pacific to large industrial ports in the Northeast -- cultural identities across this spectrum are also important.
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Six principal challenges to implementing a comprehensive approach to equity considerations in fisheries management are identified in the NMFS EEJS and several recent EOs. The first barrier relates to NMFS's acknowledgment that it has yet to fully identify underserved communities and account for impacts, including past injustices and exclusions, many of which stem from structural barriers within society as well as within the Agency's approach to underserved communities and in some cases fisheries science and management more broadly (see, e.g., White House 2022; Carothers et al., 2021; Silver et al., 2022)
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While the place-based approach envisioned in the NMFS EEJS is appropriate, it requires NMFS invest in capacity to support regional- and fishery-based approaches. The committee highlights the potential role of social impact assessments, required of fishery management actions, as a framework that could help inform NMFS work on equity in fisheries.
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For example, this report highlights Stock Assessment and Fishery Evaluation reports for tracking of fishery outcomes and social impact assessments for proposed rulemakings as potential on-ramps to improving equity in fisheries. The committee also suggests that NMFS consider its own structures, composition, collaborative opportunities, and approaches to improve the capacity of NMFS staff at all points in the management process.
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Addressing these challenges will, among other things, demand a contextually based, multidimensional approach and a con siderable expansion of the social science capacity within the agency as well as the devel opment of partnerships across a range of governmental and non-governmental sectors.
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