This document discusses the principles and challenges of ecosystem-based management (EBM) for ocean managers. It outlines five principles that should guide the development of an ecosystem-based approach: 1) setting goals that include the full range of ecosystem services, 2) determining the spatial scale for management planning, 3) integrating across sectors of human activity, 4) accounting for cumulative impacts within and across sectors, and 5) making decisions under uncertainty. The document also discusses challenges such as setting appropriate goals, establishing boundaries, and determining strategies for implementation given institutional and technical issues.
This document discusses the principles and challenges of ecosystem-based management (EBM) for ocean managers. It outlines five principles that should guide the development of an ecosystem-based approach: 1) setting goals that include the full range of ecosystem services, 2) determining the spatial scale for management planning, 3) integrating across sectors of human activity, 4) accounting for cumulative impacts within and across sectors, and 5) making decisions under uncertainty. The document also discusses challenges such as setting appropriate goals, establishing boundaries, and determining strategies for implementation given institutional and technical issues.
This document discusses the principles and challenges of ecosystem-based management (EBM) for ocean managers. It outlines five principles that should guide the development of an ecosystem-based approach: 1) setting goals that include the full range of ecosystem services, 2) determining the spatial scale for management planning, 3) integrating across sectors of human activity, 4) accounting for cumulative impacts within and across sectors, and 5) making decisions under uncertainty. The document also discusses challenges such as setting appropriate goals, establishing boundaries, and determining strategies for implementation given institutional and technical issues.
This document discusses the principles and challenges of ecosystem-based management (EBM) for ocean managers. It outlines five principles that should guide the development of an ecosystem-based approach: 1) setting goals that include the full range of ecosystem services, 2) determining the spatial scale for management planning, 3) integrating across sectors of human activity, 4) accounting for cumulative impacts within and across sectors, and 5) making decisions under uncertainty. The document also discusses challenges such as setting appropriate goals, establishing boundaries, and determining strategies for implementation given institutional and technical issues.
ocosyston-lasod appioachos to nanagonont and nunoious olloits to dohno it. Howovoi, nany nanagois ionain uncloai alout just what an ocosyston-lasod appioach ontails and aio sooking tangillo advico loi noving loiwaid with inplonontation. An ocosyston appioach to nanagonont is intondod to diioctly addioss tho long-toin, sustainallo dolivoiy ol ocosyston soivicos and tho iosilionco ol naiino ocosystons to poitui- lations. It onconpassos loth a piocoss loi tho dovolopnont ol policy actions and a concoptual lianowoik loi tho loinulation ol policy piin- ciplos, goals, and oljoctivos. Most inpoitantly, tho ocosyston-lasod nanagonont (EBM con- copt holps guido tho dovolopnont ol thoso goals loi a givon ocosyston, that is, consoiving tho dolivoiy ol tho lull iango ol soivicos lion a paiticulai syston. Foitunatoly, EBM has now loon inplo- nontod in sovoial naiino aioas, including aioas within tho Unitod Statos, Canada, Aus- tialia, Now Zoaland, and tho Euiopoan Union (Gaicia ot al. 2003, Lalolloy ot al. 2004, SAFMC 2004, Fiid ot al. 2005, NOAA 2006, Moiiick ot al. 2007, Rosonloig ot al., chap. 16 ol this voluno. Howovoi, challongos ionain, iolat- ing to loth tho sciontihc suppoit stiuctuio loi EBM and to taking nanagonont actions (o.g., Sandiloi and Rosonloig 2005. Thoio aio in- stitutional as woll as tochnical issuos to lo io- solvod, as wo discuss lolow. Tho stiatogios loi attaining ocosyston goalsthat is, tho gonoial nanagonont appioachand tactics oi spo- cihc noasuios takon to ioalizo thoso stiatogios aio tho ossonco ol inplonontation and will lo spocihc to a paiticulai ocosyston and nanago- nont sotting. Hoio wo dosciilo tho piinciplos ol EBM and tho challongos to dovoloping stiat- ogios and tactics loi inplonontation ol an oco- syston-lasod appioach to policynaking. EBM Piinciplos loi Managois Fion a nanagonont poispoctivo, hvo piinci- plos can guido tho dovolopnont ol an ocosys- ton-lasod appioach (soo lox 2.1: (1 sotting goals that includo tho lull iango ol ocosyston soivicos, (2 dotoinining tho spatial scalo loi nanagonont planning, (3 intogiating acioss soctois ol hunan activity (o.g., tianspoitation, hshoiios, onoigy pioduction, iocioation, (4 accounting loi cunulativo inpacts within and acioss soctois, and (5 naking docisions un- doi uncoitainty. Noto that piinciplos addioss- ing thoso aioas should lo accountod loi in all nanagonont planning. Paiticulai to an ocosys- ton-lasod appioach is that tho ocosyston (in- cluding hunans and its soivicos locono tho oiganizing lianowoik loi nanagonont (soo also Juda 1999, Shophoid 2004, McLood ot al. 2005, Loslio and McLood 2007. Setting Goals Goal sotting is a ciitical lunction loi nanago- nont planning (o.g., Claik 2002. Tho sotting ol goals shapos tho olloit to dovolop woikallo policy in piactico. Foi oxanplo, a solo locus on tho goal ol oltaining a spocihc lovol ol alun- danco ol a singlo spocios oi ovon a gioup ol chapter 2 What Do Managois Nood? Andrew A. Rosenberg and Paul A. Sandifer 13 14 Ecosyston-Basod Managonont loi tho Ocoans spocios (o.g., naiino nannals nay placo gioat constiaints on sulsoquont policy choicos. Each statutoloi oxanplo, lion tho Unitod Statos, tho MagnusonStovons Fishoiy Consoi- vation and Managonont Act (MSA, tho Maiino Mannal Piotoction Act, oi vaiious wotlands piotoction lawssots goals loi that activity oi soctoi, nost olton in isolation lion othois oi as il tho inpacts ol aioas ol nanagonont con- coin aio ol ninoi inpoitanco. This appioach shapos ovoiall ocoan policy ly isolating doci- sions anong soctois. In an ocosyston-lasod appioach, goal sotting is lasod on tho concopt ol sustaining tho dolivoiy ol a lull iango ol oco- syston soivicos (McLood ot al. 2005, Palunli ot al. 2009 and onsuiing that tho ocosyston doos not loso its inhoiont iosilionco, that is, its alility to alsoil poituilations and iocovoi (Walkoi and Salt 2006, Loslio and Kinzig, chap. 4 ol this voluno. Addiossing thoso ocosyston- lovol goals cannot lo achiovod ly oach soctoi in isolation. It nocossitatos intogiation. Estallishing goals loi consoiving soivicos and maintaining or enhancing resilience will lo alloctod ly tho scalo dohnod loi oach oco- syston. Thoio is no ono coiioct" scalo loi nanagonont, and tho loundaiios lotwoon ocosystons will always lo luzzy, poious, and zonos ol conict. Nonotholoss, tho intont ol locusing nanagonont olloit at tho ocosyston scalowhatovoi that night lo in a paiticulai situationis to lacilitato tho alility ol policy- nakois to considoi lactois allocting tho pio- duction ol tho lull iango ol ocosyston soivicos and to havo a cohoiont lasis loi ovaluating inpacts on ocosyston iosilionco. Managois nood to locus on noio natuial oi sciontihcally dolinitod loundaiios ol ocosystons, such as najoi liogoogiaphical loatuios oi tho woll- ostallishod linits ol laigo naiino ocosystons (LMEs (Shoinan and Skjoldal 2002, Fanning ot al. 2007, iathoi than on tho olton aitihcial loidois ostallishod ly political juiisdictions (o.g., stato loidois, toiiitoiial soa linos, linits ol tho oxclusivo ocononic zono. As NOAA Box 2.1. Principles of Ecosystem-Based Management Tho ossonco ol an ocosyston-lasod appioach to nanagonont iosts on hvo lasic piinciplos: 1. Diverse ecosystem service provision:EBM locusos on tho alility ol tho ocosyston to continuously piovido tho soi- vicos that suppoit hunan woll-loing and includos iocog- nition that hunans aio inhoiontly pait ol tho ocosyston. Such ocosyston soivicos go loyond sinplo oxtiactivo usos, such as hshoiios haivost, and can lo catogoiizod as having piovisioning, suppoiting, iogulating, and cultuial iolos loi socioty (MA 2005, McLood and Loslio, Chaptoi 1 ol this voluno. 2. Importance of natural boundaries:Managonont iocog- nizos that natuial loundaiios aio noio iolovant to tho con- soivation ol ocosyston soivicos than aitihcial loundaiios (o.g., lotwoon logal juiisdictions and that thoso natuial loundaiios aio highly poious. 3. Integrated management:Managonont stiatogios ol tho vaiious soctois ol hunan activity that potontially inpact a paiticulai naiino ocosyston can alloct ono anothoi and ioquiio sono lovol ol nanagonont intogiation il thoso in- pacts aio to lo adoquatoly contiollod. 4. Accounting for cumulative impacts and necessary trade- offs among services:Inpacts ol hunan activitios on a givon ocosyston aio olton cunulativo acioss tino and spaco, with oach activity oi inpact contiiluting to ovoiall ocosyston chango and tho cunulativo olloct dotoinining how tho ocosyston continuos to lunction. Moioovoi, pol- icy docisions aio not likoly to havo tho sano olloct on all soivicos. Sono oxplicit docisions that involvo tiado-olls in soivicos anong soctois nust lo nado. Il nanagonont is not intogiatod acioss tho soctois ol hunan activitios, thoso tiado-olls aio olton inplicit oi conplotoly ignoiod, with potontially disastious and usually unintondod iosults. 5. Making decisions under uncertainty:Managonont doci- sions should lo nado in tho contoxt ol a piocautionaiy appioach as olaloiatod ly tho US Connission on Ocoan Policy (2004, that is, ly iolying on tho lost availallo inloi- nation and nanagonont piacticos lion tho loginning, woighing docisions in light ol tho lovol ol uncoitainty ol availallo inloination and tho lovol ol potontial iisks to tho ocosyston, and including continuod gathoiing and analy- sis ol inloination, with poiiodic ioassossnont and nodih- cations ol poinit conditions oi othoi ioquiiononts. Chaptoi 2: What Do Managois Nood? 15 (2004 concludod, Tho chiol goal ol any do- linoation schono is to dovolop a googiaphic liano ol ioloionco that is usolul in dosciiling liological populations, thoii intoiactions, and tho ollocts ol hunan activitios that inuonco ocosyston outconos." Determining the Spatial Scale In a sonso, using ocosyston loundaiios iathoi than juiisdictional loundaiios should nini- nizo tho nunloi ol lactois outsido tho lound- aiios ol tho nanagonont syston that nood to lo considoiod. It is novoi possillo loi natuial systons (paiticulaily naiino systons to lo ontiioly soll-containod, and nany lactois that alloct ocosystons cioss ailitiaiily dohnod loundaiios. Foi oxanplo, clinato chango is likoly an oxtoinal diivoi that cannot lo nan- agod" within tho loundaiios ol any ono na- iino ocosyston. Howovoi, action can still lo takon within a givon ocosyston to holp niti- gato and adapt to clinato chango (soo Kliskoy ot al., chap. 9 ol this voluno, Loslio and Kinzig, chap. 4 ol this voluno. Also, naikot loicos loi soivicos aio likoly to lo alloctod ly nultiplo ocosystons. Howovoi, it is lottoi to lo allo to considoi ocosyston lunctioning, and tho in- pacts ol hunan activitios on iosulting soivicos, as conplotoly as possillo. Cloaily, thoio aio ollocts ol tho choico ol loundaiios with tho sotting ol spocihc ocosys- ton goals. Il ocosyston loundaiios aio dohnod at a snall scalo, goal sotting nay lo sinplihod, lut attaining thoso goals will lo noio dilhcult locauso thoio will likoly lo noio oxtoinal lac- tois. Il loundaiios aio lioad, thon tho dinon- sionality ol tho goals will incioaso sulstantially, sinply locauso thoio aio likoly noio paits" to tho ocosyston. Yot, policy could lo noio cohoi- ont acioss tho soctois ol hunan activity and night woik lottoi in attaining goals ly loing noio inclusivo ol all tho hunan inpacts within tho ocosyston. Foi oxanplo, nanaging just tho ostuaiy ol a singlo watoishod nay lo woikallo and allow cloai goals to lo sot, lut it nay lo voiy dilhcult to achiovo ocosyston-lovol goals without tho alility to nanago intoiactions with diivois occuiiing at a laigoi scalo. On tho othoi hand, glolal action to addioss naiino ocosys- ton piotoction nay lo olloctivo in ono sonso, lut sotting goals at tho glolal scalo nay lo noxt to inpossillo. In piactico, a lalanco nust lo lound in sotting ocosyston loundaiios lo- twoon thoso two oxtionos. Roalistic loundai- ios loi EBM, coitainly at tho iogional scalo, aio gonoially going to lo laigoi than tho watoishod ol a singlo, snall ostuaiy lut nay lo snalloi than an LME. Dolinoating a hnito nunloi ol iogional ocosystons that can locono tho loci ol nanagonont olloits will ontail a conpio- niso lotwoon oui undoistanding ol liological populations and ocoanogiaphic piocossos and tho ostallishod stiuctuio ol hunan institu- tions and political juiisdictions (NOAA 2004. Foi tho Unitod Statos, ono appioach woith con- sidoiing (and that advocatod ly tho US Con- nission on Ocoan Policy j2004| would lo tho ocoiogions dohnod ly tho oight iogional hsh- oiy nanagonont councils (hg. 2.1. Integrating Across Sectors Intogiating nanagonont acioss soctois ol hunan activity, such as linking up hshoiios nanagonont actions with watoi quality nan- agonont and coastal dovolopnont, is koy to an ocosyston appioach. Howovoi, whilo ciiti- cal, such intogiation is not indopondont lion tho othoi piinciplos. It is possillo to intogiato nanagonont actions (and thoio is sulstan- tial litoiatuio on intogiatod nanagonont, o.g., Caiins and Ciawloid 1991, Cicin-Sain and Knocht 1998 without a locus on tho goals ol naintaining tho alility to piovido a lull suito ol ocosyston soivicos oi naintaining iosilionco. Intogiatod nanagonont without ocosyston goals night inpiovo olhcioncy ol nanagonont and stioanlino sono iogulations and con- tiols, lut it will not holp to onsuio ocosyston 16 Ecosyston-Basod Managonont loi tho Ocoans iosilionco. As discussod in chaptoi 1, it is tho intogiation acioss soctois that onallos policy to addioss conicts and synoigios and allows sinplihcation ol nanagonont to noot nul- tiplo oljoctivos. Sinilaily, intogiating tho sci- ontihc advico loi a givon ocosyston will iovoal policy options as woll as now avonuos loi invos- tigation loyond any ono disciplino`s oi soctoi`s convontional viow. Accounting for Cumulative Impacts and Trade-offs among Services Rocognizing and accounting loi tho cunula- tivo ollocts ol hunan activitios is dilhcult lut, nonotholoss, nocossaiy loi nanagonont to ad- dioss EBM goals. A sinplo oxanplo is nodih- cation ol wotlands. In a thousand-hoctaio aioa, poihaps hlling oi diodging a hoctaio oi two nay not alloct tho lunctioning ol tho wotland (such lunctions includo sodinont tiapping, oxpoiting ol pioductivity, pioviding nuisoiy and looding aioas loi a vaiioty ol spocios, and suppoiting iocioation and othoi cultuial ac- tivitios. But supposo two hundiod poinits aio ioquostod loi ono hoctaio oach ovoi tino? At what point aio tho ocosyston soivicos pio- vidod inpaiiod? Should poinits lo issuod on a hist-cono, hist-soivod lasis, oi sono othoi ciitoiion? At what point do tho ninoi inpacts Figure 2.1 Eight iogional hshoiy nanagonont councils nanago tho haivost ol iosouicos within tho Unitod Statos. Sovoial statos, illustiatod with voitical linos, lolong to noio than ono council. Foi oxanplo, Oiogon and Washington aio loth nonlois ol tho Pacihc and tho Noith Pacihc councils. Tho US Connission on Ocoan Policy (2004 advocatod that thoso ocoiogions lo usod to dohno tho loundaiios ol iogional naiino ocosystons in US watois. Chaptoi 2: What Do Managois Nood? 17 ol oach individual poinit cascado into a najoi cunulativo olloct? Aio tho soivicos piovidod ly tho hllod oi diodgod aioas noio inpoitant than tho natuial wotland aioas? To what linit? Thoso quostions iolato diioctly to tho piinciplo ol ovaluating tiado-olls lotwoon dilloiont soi- vicos and usoi gioups. Undoi soctoi-ly-soctoi nanagonont, tiado- olls within a soctoi nay lo considoiod, lut thoso anong soctois aio laigoly ignoiod and olton ionain unaccountod loi. Supposo coastal dovolopnont ol hailoi lacilitios is to lo nan- agod. What aio tho tiado-olls lotwoon spaco loi iocioational vossols, connoicial hshing vossols, and connoicial tianspoit vossols? What alout woiking watoiliont aioas voisus touiist aioas, oi natuial coastal aioas and do- volopod aioas? How should tho docisions lo nado? In a soctoi-ly-soctoi nanagonont sys- ton, hshoiios nanagois night connont on hailoi noods lut night not havo diioct input into tho nanagonont piocoss loi coastal plan- ning. Rocioational and connoicial hshing intoiosts oach night push loi as nuch spaco as possillo, lut othoi than political piossuio, what is tho noans ol iosolving tho tiado-olls lotwoon thoso gioups? What is tho loiun loi considoiing ovoiall nood and loi ovaluating olloctsloth potontially lonohcial and noga- tivoon othoi soctois oi industiios? Alout tho only piocoss cuiiontly availallo in tho Unitod Statos is tho onviionnontal-poinitting syston opoiatod ly tho stato coastal zono nanagonont agoncios and tho US Ainy Coips ol Enginoois and iolatod onviionnontal inpact analysis io- quiiononts. Howovoi, this syston also typi- cally doals with ono poinit at a tino. Gonoially, no conpiohonsivo, iogionwido ovaluations aio conductod, and without sono cloai analysis ol altoinativos, political considoiations nay don- inato. Thoio aio olton tianspoit plans, coastal zono nanagonont plans, hshoiy plans, and othois, lut tho tiado-olls anong thoso soctois can only lo ovaluatod il planning is intogiatod (lox 2.2. Making Decisions under Uncertainty Thoio is inovitallo uncoitainty in tho status and dynanics ol any ocosyston, oui knowl- odgo alout that syston, and tho ollocts ol po- tontial nanagonont actions. Managonont nust dotoinino how to piocood in inplonont- ing policy with inpoiloct inloination and sul- stantial uncoitainty in alnost all casos. Givon tho locus on consoiving ocosyston soivicos and iosilionco in an EBM appioach, a piocau- tionaiy appioach to nanagonont (Rosonloig 2002, USCOP 2004, Rosonloig 2007 is cloaily nocossaiy, that is, to avoid iiiovoisillo changos, lo noio cautious whon uncoitainty alout tho inpacts ol an activity is gioatoi, and ovaluato potontial inpacts loloio allowing activitios to novo loiwaid, iathoi than allowing thon hist and tiying to iocovoi latoi. Box 2.2. Regional Ocean Councils Both US ocoan connission iopoits (POC 2003, USCOP 2004 includod sulstantial considoiation ol iogional ocoan councils. Such councils oi othoi iogional cooidinating noch- anisns piovido an oppoitunity loi tho cioss-soctoial discus- sions, associatod inloination gathoiing, and cloaiinghouso lunctions that nust occui in oidoi loi an EBM appioach to lo inplonontod. It is inpoitant to link tho olloits to cioato cooidinating lodios with tho dovolopnont ol scionco inlia- stiuctuio in oidoi to luild a cohoiont syston. Rogional coun- cils oi othoi cooidinating ontitios do not supplant tho nood loi soctoial nanagonont plans, though hopolully thoy would bring new considerations to bear as well as create better man- agonont acioss tho loaid. Rocont intoiost at tho stato lovol, as oxpiossod thiough tho initiation ol sovoial intoistato, ocoio- gional alliancos, piovidos loadoiship oxanplos that tho lodoial govoinnont could onulato and oppoitunitios to ostallish iogional govoinanco ontitios. 18 Ecosyston-Basod Managonont loi tho Ocoans Challongos to Inplononting Ecosyston-Basod Managonont Policios Inplononting an ocosyston-lasod appioach undoi tho hvo piinciplos outlinod hoio is no sinplo task. Fion a nanagoi`s poispoctivo, thoio aio loth incontivos and disincontivos to apply thoso piinciplos. Tho cloai incontivo is that an ocosyston-lasod appioach is noio conpiohonsivo, and thooiotically it should io- sult in noio olloctivo and succosslul nanago- nont il succoss is to lo noasuiod piincipally in toins ol long-toin sustainalility and tho continuod dolivoiy ol nocossaiy and dosiiod ocosyston soivicos. Conpiohonsivonoss is noio olloctivo locauso it doos not ignoio tho interaction between management actions nor tho cunulativo natuio ol inpacts, as olton oc- cuis with soctoi-ly-soctoi nanagonont. It is unlikoly in ioal systons that thoso intoiactions and cunulativo ollocts aio nogligillo and can lo saloly ignoiod (Halpoin ot al. 2008. EBM attonpts to doal with thoso intoiactions and cunulativo ollocts up liont, whoio choicos and tiado-olls can lo nado consciously, as opposod to sinply allowing thon to happon with un- known and unconsidoiod consoquoncos. Foi oxanplo, watoi quality, coastal dovol- opnont, and hshoiy pioductivity aio alnost coitainly iolatod in nost systons locauso tho loinoi two hunan inpacts alloct tho pioduc- tivity ol hshoiios halitat. Whilo sono olloits ovoi tho last 10 yoais havo loon nado to in- cludo tho considoiation ol hshoiios halitat in tho hshoiy nanagonont piocoss (Rosonloig ot al. 2000, thoso lall lai shoit ol intogiation, locauso noithoi tho goals loi oach soctoi noi tho inpacts ol oach on tho othoi aio jointly addiossod. Rathoi, tho nandato to piotoct os- sontial hsh halitat iolatos nostly to potontial inpacts ol hshing itsoll, along with woak pio- visions to consult with othoi soctoi nanagois on actions that night inpact halitat. Thoio is no considoiation ol tiado-olls noi a cloai lo- cus on a lioadoi iango ol ocosyston soivicos. Cloaily, nanaging ocosyston soivicos such as ossontial hsh halitat in a noio intogiatod way will lo voiy challonging. Whon tho nandato was hist cioatod in tho 1996 anondnonts to tho MSA (NMFS 1996, sovoial gioups such as tho National Association ol Hono Buildois locano concoinod that hono luilding would lo inpactod ly hshoiy nanagonont planning (Rosonloig, poisonal olsoivation. Biinging togothoi noio soctois liings a lioadoi aiiay ol constituoncios into tho nanagonont aiona. Il all tho soctois aio nanagod sopaiatoly, thoio is no ioal oppoitunity to lovoiago actions acioss tho ocosyston as a wholo. This will only occui il an intogiatod oi conpiohonsivo nan- agonont appioach is takon whoio all nanag- ois involvod considoi tho sano things and, to tho dogioo possillo, uso a connon appioach (Rosonloig and McLood 2005, Palunli ot al. 2009. Considoi, loi oxanplo, tho conplox sot ol naiino piotoctod aioas in tho Gull ol Maino (hg. 2.2. Each aioa was ostallishod loi a dilloi- ont puiposo and usually loi a singlo soctoi oi pait ol a soctoi, such as a spocihc hshoiy. Tho aioas do not conplonont oi lovoiago ono an- othoi, and tho iosult is an ovoilapping sot ol io- quiiononts that havo loon sonowhat olloctivo in pioviding sono ocosyston piotoctions, such as loading to paitial hsh stock iocovoiy (Roson- loig ot al. 2006 oi halitat piotoction (Collio ot al. 2005, Giizzlo ot al. in pioss. But thoso succossos aio liagnontaiy and lall lai shoit ol EBM goals ol naintaining ocosyston soivicos as a wholo, ovon though oach nay havo had sono succoss loi a givon paiticulai iosouico. Il tho piotoctod aioas woio dosignod to noot nul- tiplo puiposos and iationalizod to lo a non- ovoilapping sot ol piotoctions, thon thoy would also lo noio cohoiont to tho alloctod connu- nity on tho watoi. Boyond just tho cioation ol piotoctod ai- oas, il tho goals loi ocosyston soivicos and iosilionco woio considoiod togothoi, it should lo possillo to sinplily tho iulos to dotoinino whothoi sots ol activitios should lo piohilitod Chaptoi 2: What Do Managois Nood? 19 oi allowod within dilloiont aioas in a syston ol contiguous zonos, nuch as occuis on land. Whilo nany intoiost gioups aio waiy ol a zon- ing appioach in tho ocoan, tho iosults nay ulti- natoly lo noio cohoiont and sinploi that tho cuiiont liagnontod appioach (Ciowdoi ot al. 2006, Young ot al. 2007. Cuiiont soctoi-ly-soctoi nanagonont has a sot ol piocoduios that is woll known ly thoso taskod to inplonont policy. Tho nandatos aio ioasonally cloailoi oxanplo, to achiovo opti- nun hshoiy yiolds, oi hshallo and swinnallo watois. Taking an ocosyston-lasod appioach noans changing thoso piocoduios. As with nost hunan activitios, chango is dilhcult. As a iosult, nanagois aio likoly to lo conictod with iospoct to thoii dosiio to inplonont EBM. Tho goals ol EBM aio widoly accoptod ly nan- agois, lut tho changos noodod to attain thoso goals noan woiking outsido ol tho oxisting loundaiios loi soctoial nanagonont. Manago- nont inplonontation in oach ol tho soctois ol ocoan activitios, such as hshoiios, watoi qual- ity, halitat consoivation, piotoction ol spocios at iisk, tianspoitation, oi onoigy dovolopnont, is intonsoly contiovoisial and alioady dilhcult Figure 2.2 Closod aioas in tho Gull ol Maino illustiating tho conploxity ol nanagonont on a soctoi- ly-soctoi lasis. Adaptod lion Rocchia ot al. 2001 and iopiintod with tho poinission ol Tho Ocoan Consoivancy. 20 Ecosyston-Basod Managonont loi tho Ocoans undoi tho cuiiont syston. Gotting nanagois to tako on EBM, with its now contiovoisios, lioadoi constituoncios, and noio-conplox do- cision naking that involvos tiado-olls and in- toiactions with othoi soctois, ovon il it nay lo tho iight thing to do, is a najoi challongo and will ioquiio that now nandatos and nanago- nont systons lo dovolopod caiolully (USCOP 2004. In statutoiy languago, tho goal ol naintain- ing tho lull iango ol ocosyston soivicos acioss soctois is addiossod in only a gonoial sonso, as notod alovo. Foi oxanplo, tho MSA calls loi hshoiios to lo nanagod loi optinun yiold, do- hnod as naxinun sustainallo yiold as ioducod ly iolovant social, ocononic, and ocological considoiations. Tho 2007 ioauthoiization ol tho MSA stiongthons tho iolo ol scionco in sot- ting thoso linits and takos sono stops towaid dovoloping ocosyston plans lut still locusos on hshoiios yiold as tho piinaiy goal. Tho oxtont to which a spocihc plan should includo ioduc- tions lion naxinun yiold is a nattoi loi hsh- oiy nanagonont councils to docido and justily. Tochnically, it nay lo justihallo to docido that only a voiy low yiold will lo allowod locauso it is noio inpoitant to pioduco anothoi soivico at a high lovol (o.g., allow only a low yiold ol loiago spocios locauso ol tho dosiio to incioaso whalo-watching oppoitunitios noai shoio, oi a low yiold ol an anadionous spocios locauso ol hydiopowoi oi tianspoitation noods. But is it ioasonallo to oxpoct that a council sot up to nanago hshoiios and conposod ol olhcials, iopiosontativos, and individuals knowlodgoallo alout hshoiios will docido to ioduco hshoiy pioductivity to noot tho noods ol anothoi soc- toi whon that othoi soctoi has only ninoi in- volvonont in tho hshoiy nanagonont piocoss, and vico voisa? To tako anothoi oxanplo, iocio- ational and connoicial hshoiios loth dopond on poit lacilitios in ono way oi anothoi. But poit lacilitios nay inpact natuial laiiiois that piovido stoin piotoction, oi watoi quality, oi halitat consoivation. Should wo oxpoct hshoiy nanagois to ioduco hshoiy yiolds to ioduco tho donand loi poits? Whilo thoso oxanplos aio intondod to lo illustiativo and not oxact (oach is lai noio conplox than dosciilod hoio, tho piollon should lo cloai. Il tiado-olls aio only considoiod within a soctoi, thon policy choicos will lo nado inplicitly and not oxplicitly with iogaid to tho suito ol ocosyston soivicos lion any givon syston. It is tho govoinanco stiuctuios at tho lod- oial, stato, and tiilal lovols that nust sot tho goals loi policy and tho appioach to naking docisions with iospoct to tiado-olls anong soi- vicos. That is, logislativo lodios nust cioato tho nandatos, locauso oach adninistiativo agoncy at tho vaiious lovols doos not havo a sulhciontly lioad puiviow to covoi tho spoctiun ol soi- vicos. At tho adninistiativo oi inplononting lovol, spocihc cooidinating nochanisns nust lo put in placo to woik thiough tho intoiac- tions lotwoon nanagonont actions, and thoso cooidinating nochanisns nust lo allo to nako docisions that havo ioal inpacts on tho individual agoncy actions. That noans that tho statutoiy nandato has to sot up noans to cio- ato docision iulos oi givo tho authoiity to sono ontity to cioato thoso docision iulos loi how to iosolvo conicts and intoiactions. Thon too, thoio aio hunan iosouico and lunding issuos. Most nanagois and sciontists soo dovolopnont ol an ocosyston-lasod ap- pioach as sonothing additional to do, not a dilloiont way ol doing things. Natuial iosouico agoncios and scionco olloits aio olton undoi- stallod and undoilundod. Pioviding noio lunds and iosouicos loi iogulatoiy olloits nay not lo tho nost populai political initiativo in dolatos ovoi sponding piioiitios. But EBM will not happon without additional hunan iosouicos and lunding, ovon il tho long-toin piospoct is a noio cohoiont and olhciont sys- ton that lottoi naintains piovision ol ciitical ocosyston soivicos. Chaptoi 2: What Do Managois Nood? 21 Dovoloping tho Scionco loi an Ecosyston-Basod Appioach to Management Natuial and social sciontists coitainly undoi- stand that naiino ocosystons, including tho iolos ol hunans and thoii individual and col- loctivo actions within thoso systons, aio highly intoiconnoctod (Shackoioll ot al., chap. 3 ol this voluno. Whilo tho piinciplos givon alovo aio not nocossaiily univoisally accoptod in tho sciontihc connunity, thoio is lioad agioo- nont on tho intoiconnoctodnoss and conplox- ity ol naiino ocosystons and tho inpoitanco ol taking a noio intogiatod appioach to nan- agonont (McLood ot al. 2005. So, doos it lol- low that sciontists want and aio piopaiod to inplonont an ocosyston-lasod appioach and aio waiting loi nanagois to act? And doos it lollow that nanagois want to inplonont EBM and aio just waiting loi sciontists to piovido a woikallo lluopiint? Tho iolo ol scionco in policy and nanago- nont is to piovido advico on consoivation linits, inpacts, and piojoctod changos in tho ocosyston (including hunans undoi dilloiont nanagonont sconaiios. A koy aioa ol advico should iolato to ocosyston iosilionco, that is, tho alility ol tho syston to iocovoi lion loth acuto and chionic inpacts (Loslio and Kin- zig, chap. 4 ol this voluno. This is iooctod in statononts dosciiling tho piocautionaiy ap- pioach, loi oxanplo, thoso that onphasizo tho avoidanco ol iiiovoisillo changos. Scionco is not policy lut, iathoi, inloins policy and nan- agonont. Sciontists coitainly want nanago- nont to woik lottoi and thus havo tho sano incontivo as nanagois to suppoit a noio con- piohonsivo appioach to nanagonont, such as EBM, that accounts loi intoiactions and cunu- lativo inpacts. But nany ol tho sano disincon- tivos loi nanagois apply to sciontists as woll. Tho cuiiont syston ol soctoial nanagonont io- quiios sciontihc advico using gonoially known piocoduios and involvos sciontists lion a lin- itod nunloi ol disciplinos and with spocihcally applicallo oxpoitiso. Tho nandatos aio woll known, and tho constituoncios sciutinizing tho advico aio woll ostallishod. Whilo sciontihc advico in alnost all soctois can lo highly con- tiovoisial, it is ioasonally piodictallo, though olton linitod in its inuonco on how nanago- nont piocoods in piactico. Still, it is ciitically inpoitant to iocognizo that quostions iaisod ly nanagois nust ht within tho oxisting sciontihc lianowoik loi a paiticulai soctoi. Othoiwiso, thoso quostions will ionain unanswoiod. Chango is as dilhcult loi sciontists to accopt as loi nanagois, a now ioquiionont to woik outsido ol thoii known woild" and with othoi sciontists and nanagois who havo widoly dil- loiont lackgiounds, oxpoitiso, and poicoptions is likoly to lo intinidating oi unaccoptallo loi sono. Additionally, in nany sciontihc analysos, tho hist stop is olton to sinplily tho piollon to nako it as tiactallo as possillo. Considoi- ing ocosyston intoiactions and cunulativo inpacts in nanagonont docisions is a najoi conplication that nakos analysos nuch noio dilhcult. Foi oxanplo, piocoduios to dovolop hshoiy stock assossnonts and noasuio hshoiy poiloinanco with iogaid to accoptod consoiva- tion standaids aio woll known and ioutinoly inplonontod (soo Hilloin and Waltois 1992, NRC 1998. Managonont is, nonotholoss, dil- hcult and contiovoisial, and ly oxtonsion, so is tho sciontihc advico undoipinning tho nan- agonont docisions. Howovoi, tho inclusion ol tho cunulativo inpacts ol halitat changos and hshoiy ollocts as woll as tiado-olls with, say, onoigy dovolopnont, coastal land uso, oi watoi quality aio nuch noio conplicatod, and pio- coduios loi doing so aio pooily dohnod to dato. Undoi tho tino piossuio to novo loiwaid with nanagonont, pioviding advico in an alioady contontious onviionnont will locono a koy challongo loi sciontists whon such intoiactions aio includod. 22 Ecosyston-Basod Managonont loi tho Ocoans Dovoloping a Sciontihc Advisoiy Stiuctuio loi EBM Il a sciontihc advisoiy stiuctuio is to lo dovol- opod loi EBM, do wo know onough alout oco- syston intoiactions, cunulativo ollocts, and tiado-olls lotwoon soivicos to piovido usolul advico to nanagonont? Cloaily, dotailod knowl- odgo ol ocosyston stiuctuio, lunctioning, and dynanics is inconploto and uncoitain in vii- tually all casos. But wo do know sono ol tho koy intoiactions, wo havo olsoivod changos in nunoious ocosystons, and wo havo sulhciont inloination lion othoi, sinilai ocosystons to adviso nanagonont on likoly inpacts ol hu- nan activitios. Wo also know, to a gioat oxtont, tho consoquoncos ol nany typos ol hunan in- pacts and ol tho past and piosont nanagonont ol thoso hunan activitios. In addition, thoio is littlo uncoitainty alout what noods to lo dono alout najoi piollons such as ovoihshing (i.o., ioduco oxploitation and wotlands loss (i.o., io- duco hlling, channoling, and loss ol sodinont and watoi ow. Foi nany ocosystons, it should lo possillo to login to synthosizo systonwido pattoins ol chango ly conlining inloination oltainod acioss vaiious soctois, such as hshoiios, onoigy pioduction, watoi quality changos, and coastal dovolopnont. This anounts to a lasolino as- sossnont ol tho status ol an ocosyston that can lo usod to ovaluato tho likoly ollocts ol now ac- tivitios and tho potontial inpact ol changos to nanagonont (USCOP 2004, DEFRA 2005. It is also inpoitant to not only lo loiwaid-think- ing, lut also dovolop a histoiical poispoctivo ol ocosyston changos (o.g., Jackson ot al. 2001, Rosonloig ot al. 2005, iathoi than assuno tho cuiiont stato ol tho onviionnont is all that can lo achiovod. This is paiticulaily ciitical as io- luilding and iocovoiy plans aio loinulatod loi vaiious ocosystons. Many soctois ol hunan activity havo ox- tonsivo inliastiuctuios loi scionco advico to guido nanagonont. Ono ol tho nost highly dovolopod systons piovidos scionco advico to suppoit hshoiy nanagonont. Tho hold ol hsh- oiios scionco is iathoi snall, with only poihaps a low hundiod sciontists pioviding advico loi naiino hshoiios nationwido within tho Unitod Statos and a low thousand ongagod in scionco and iosoaich on hshoiios within acadonia and all lovols ol govoinnont. Howovoi, tho lodoial, stato, and tiilal agoncios iosponsillo loi hsh- oiios alnost invaiially includo a sciontihc ad- visoiy stall and, olton, activo iosoaichois. Tho lodoial govoinnont has iogional hshoiy sci- onco contois aiound tho countiy that includo iosoaich, nonitoiing, and nanagonont advico as pait ol thoii nissions. In lact, NOAA`s Na- tional Maiino Fishoiios Soivico (NMFS, tho piinaiy lodoial agoncy iosponsillo loi naiino hshoiios, naiino piotoctod spocios, and hsh- oiy halitat consoivation, is conposod ioughly ol two-thiids scionco poisonnol and associ- atod ludgot to suppoit thon and only ono- thiid nanagonont and policy inplonontation. NMFS stall ioutinoly collaloiato with iosoaich- ois in othoi lodoial agoncios (o.g., tho US Fish and Wildlilo Soivico and tho US Goological Suivoy and with thoso in stato and tiilal agon- cios and in acadonia. Tho lodoial, stato, and tiilal sciontists woik togothoi to piovido advico to lodoially nanagod hshoiios and loi a nunloi ol othoi hshoiios nanagod ly intoistato lodios such as tho At- lantic Statos Maiino Fishoiios Connission. Foi lodoially nanagod hshoiios, tho nanago- nont plans aio cialtod ly oight iogional hsh- oiy nanagonont councils nado up ol stato and lodoial olhcials and knowlodgoallo con- stituonts lion tho iogion, with sciontihc sup- poit piovidod ly a natuio notwoik ol lodoial, stato, tiilal, and acadonic hshoiios sciontists and a giowing nunloi ol social sciontists. Thoso nanagonont plans aio sulnittod ly tho councils to NMFS loi appioval and inplonon- tation. Appioval is contingont upon tho plans nooting, in tho judgnont ol tho US sociotaiy ol connoico thiough NMFS, ton national Chaptoi 2: What Do Managois Nood? 23 standaids loi nanagonont and othoi piovi- sions laid out in tho MSA, which was updatod and ioauthoiizod in oaily 2007. Sovoial ol tho national standaids and piovisions ol this law iolato diioctly to sciontihc advico, including tho nandato to uso tho lost scionco availallo" in sotting nanagonont goals, stiatogios, and tac- tics. Foi oxanplo, tho MSA ioquiios tho plans to piovont ovoihshing and, in casos whoio ovoihshing has occuiiod, to ioluild ovoihshod stocks to a lovol allo to piovido naxinun sus- tainallo yiold on a continuing lasis. Fishoiios sciontists uso woll-dovolopod nothods loi osti- nating naxinun sustainallo yiold oi iolatod ioloionco points and loi ostinating stock sta- tus. Inpiovod nothods aio loing dovolopod and inplonontod on an ongoing lasis as thoy aio accoptod within tho sciontihc connunity. In addition, tho MSA ioquiios considoiation ol inpacts on halitat lion hshing and othoi ac- tivitios as pait ol considoiing ocosyston-lovol ollocts, lut it doos not ioquiio inplonontation ol an EBM appioach to hshoiios nanagonont. Howovoi, it doos now nandato a study ol how EBM night lo appliod. Tho sciontihc advico loi oach nanagonont plan is ioquiiod to undoigo oxtonsivo pooi io- viow loloio it is doonod tho lost availallo." To this ond, thoio aio iogional pooi ioviow woik- shops, panol ioviows, and sonotinos spocial oxtoinal ioviows, including sono ly tho Na- tional Acadony ol Scioncos, that ovaluato tho sciontihc advico loi oach hshoiy in gioat dotail. Thoso pooi ioviows aio lai noio oxtonsivo than tho usual acadonic ioviow ol jouinal aiticlos with panols ol loui to ton oi noio sciontists considoiing tho nothodology, data, and conclu- sions in dotail. Altoinativo data and analysos aio considoiod, pullic connont and sciutiny aio includod as woll as connont and sulnissions lion constituont gioups, and in gonoial tho io- viows aio hold to a voiy high standaid. Each ol tho iogional hshoiy nanagonont councils has a scionco and statistical connittoo (SSC to io- viow tho iosults ol tho pooi ioviows and onsuio that tho council is iocoiving tho lost advico pos- sillo. Rocont changos to tho MSA ioquiio tho uso ol thoso SSCs in sotting consoivation lin- its loi oach taigot stock ol hsh. Howovoi, tho advico piovidod ly tho SSCs is typically linitod to tho hshoiy soctoi, with littlo considoiation ol inloination lion othoi soctois such as coastal zono nanagonont, poit nanagonont, coastal dovolopnont, and so loith. Whilo this nay lo changing incionontally in piactico (o.g., soo SAFMC 2004, thoio is as yot no policy ioquiio- nont oi ostallishod piocoduio to incoipoiato sciontihc inloination lion thoso othoi soctois into hshoiy nanagonont docision naking oi vico voisa. This is a voiy highly dovolopod syston that is costly, laloiious, and ioasonally olloctivo, lut still hshoiios nanagonont is voiy lai lion poiloct. Stocks aio still ovoihshod, advico is not always lollowod (o.g., Sandiloi and Roson- loig 2005, and it is sonotinos incoiioct. Tho ioviow syston notwithstanding, data aio ol- ton inadoquato dospito tho inliastiuctuio, and ovoiyono woiking within tho syston would piolally agioo that tho sciontihc ontoipiiso to suppoit hshoiy nanagonont is sulstantially undoilundod. Dospito thoso piollons, hsh- oiios nanagonont has logun to tuin aiound sono ol tho long-standing piollons ol ovoi- hshing and stock ioluilding. Although such chango is happoning noio slowly than nany would liko, it is lasod upon cloai and suppoit- allo sciontihc advico (Rosonloig ot al. 2006. Thoio is no conpaiallo sciontihc advisoiy syston loi othoi inpoitant naiino soctois, such as coastal dovolopnont, halitat nanago- nont, coastal touiisn, tianspoitation nanago- nont, oi ovon onoigy dovolopnont. That is not to say thoio is no scionco advico loi thoso soc- tois, lut tho sciontihc stiuctuio undoipinning docision naking is lai loss dovolopod and insti- tutionalizod, and thoio is loss inliastiuctuio to piovido suppoiting iosoaich, nonitoiing, oval- uation, and tho piopaiation ol taigotod scion- tihc advico in a standaid way. Also, thoio aio no 24 Ecosyston-Basod Managonont loi tho Ocoans cloai paiallol institutions to NOAA`s iogional hshoiy scionco contois, not ovon loi sonothing as lundanontal and inpoitant as watoi qual- ity oi onoigy. Ol couiso, tho Enviionnontal Piotoction Agoncy has laloiatoiios and noni- toiing systons and woiks diioctly with stato nonitoiing piogians, lut thoso aio not into- giatod into tho nanagonont piocoss iogionally oi nationally as is tho caso loi hshoiios. Tho intont ol tho loiogoing liiol dosciip- tion ol tho hshoiy nanagonont syston is not to laud oi dolond hshoiy scionco and nanago- nont, lut iathoi to piovido contoxt loi con- sidoiation ol tho challongos to dovoloping tho sciontihc inliastiuctuio loi lioadoi ocosyston- lasod nanagonont. Cioating a syston loi tho piovision ol advico loi ocosyston-lasod nan- agonont acioss a nunloi ol soctois will io- quiio a nunloi ol changos, including thoso listod in lox 2.3. Much ol tho oxpoitiso loi such a scionco advisoiy piocoss alioady ox- ists, and nany ol tho activitios alioady undoi way havo laid a loundation. Tho institutional inliastiuctuio can lo viitual, lut it nust ox- ist in sono loin and will tako iosouicos and an ongoing connitnont lion govoinnont to nako it woik. Thoio aio cloaily now aioas to dovolop, including tho cioation ol ocosyston sconaiio analysos that can lo usod to guido nanagonont. Poihaps nost inpoitantly, EBM sciontihc advico nust lo intoidisciplinaiy to a gioatoi oxtont than has loon attonptod in tho past within any ono soctoi (Loslio ot al. 2008. Foi oxanplo, oxploiing tho intoiactions and tiado-olls lotwoon nanagonont policy options ioquiios a signihcant intoidisciplinaiy olloit anong nunoious and divoiso aioas ol loth natuial (o.g., liology, ocology, hshoiios, gonon- ics, ocoanogiaphy and social (o.g., anthiopol- ogy, ocononics, political scionco, sociology scioncos. This is a ciitical aioa ol woik loi in- plonontation ol EBM locauso ono ol tho ioa- sons loi noving towaid a noio conpiohonsivo nanagonont appioach is in oidoi loi tiado-olls to lo considoiod oxplicitly, iathoi than having tho tiado-olls continuo to occui as tho unin- tondod consoquoncos ol vaiious nanagonont actions. Ono option is to valuo tho soivicos, us- ing a connon nothodology oi ocological cui- ioncy," and thon dovolop docision tools that allow iolativo valuos ol dilloiont policy sconaiios to lo conpaiod (soo Waingoi and Boyd, Chap. 6 ol this voluno. But tho valuation task itsoll is conplox, as nany ocosyston soivicos do not yot havo ostallishod naikot valuos, and sono nay novoi havo such valuos. Dovolopnont ol a piocoss to placo widoly accoptod naikot valuos on a vaiioty ol ocosyston soivicos is a voiy ac- tivo aioa ol iosoaich conlining ocononics and othoi social scioncos with tho natuial scioncos ol ocosyston dynanics (o.g., Moyoison ot al. 2005. Anothoi appioach would lo to considoi ono koy piopoity, such as liodivoisity, as a con- non locus ol nanagonont and lasis loi con- paiison ol nanagonont altoinativos (Palunli ot al. 2009. Rocont woik has iolatod consoiva- tion ol natuial liodivoisity to naintonanco ol sovoial inpoitant ocosyston soivicos, includ- ing hshoiy pioductivity and iosilionco in loth naiino (Woin ot al. 2006, Palunli ot al. 2009 and toiiostiial (o.g., Butloi ot al. 2007 systons. Rocont Piogioss and Noxt Stops Thoio is no cuiiont policy nandato to syn- thosizo sciontihc knowlodgo acioss soctois to suppoit EBM, and no conpiohonsivo ad- ninistiativo lianowoik oxists to suppoit in- togiatod ocoan nanagonont in tho Unitod Statos dospito calls loi such lion loth ocoan connissions (POC 2003, USCOP 2004. Tho Bush Adninistiation`s US Ocoan Action Plan (US Exocutivo Bianch 2004 iosponso to tho USCOP (2004 iopoit includod an oxplicit con- nitnont to ocosyston-lasod iosouico nanago- nont. Additionally, tho nowly ioauthoiizod and anondod MSA ioquiios sono ovaluation ol EBM loi application to hshoiios, and a conpio- honsivo syston could lo dovolopod using tho Chaptoi 2: What Do Managois Nood? 25 hshoiios advisoiy syston as a nodol. Cioating ocosyston assossnonts using tho sciontihc in- liastiuctuio loi EBM suggostod alovo is an in- poitant stop in synthosizing oui cuiiont stato ol knowlodgo and will piovido a lasis loi nan- agonont and loi planning a lutuio iosoaich agonda (USCOP 2004, DEFRA 2005. Ono iay ol hopo is piovidod ly tho iocontly ioloasod national Ocoan Rosoaich Piioiitios Plan and Inplonontation Stiatogy dovolopod ly tho US Joint Sulconnittoo on Ocoan Sci- onco and Tochnology (JSOST 2007. This is tho hist conpiohonsivo ocoan iosoaich plan that involvos ovoiy agoncy ol tho US govoinnont concoinod in any way with ocoan iosoaich. Tho ovoiaiching goal ol tho plan is to piovido tho guidanco to luild tho sciontihc loundation to inpiovo socioty`s stowaidship and uso ol, and intoiaction with, tho ocoan." Tho plan locusos on thioo contial olononts ol ocoan scionco and tochnology: (1 capalility to loiocast ocoan and ocoan-inuoncod piocossos and phononona, (2 dovolopnont ol sciontihc suppoit loi EBM, and (3 doploynont ol an ocoan-olsoiving sys- ton. Thoso thiooocoan loiocasting, EBM, and ocoan olsoivingpoinoato tho ontiio doc- unont and its twonty national iosoaich piioii- tios oiganizod within six sociotal thonos. Tho JSOST (2007 luithoi iocognizod tho lioadth ol sciontihc suppoit and intogiation that would lo noodod to inplonont EBM, stating that a nulti-dinonsional, nulti-disciplinaiy olloit to onhanco cuiiont undoistanding ol ocosys- ton piocossos, dotoinino which intoiactions aio nost ciitical, and assoss tho dynanics ol tho natuial and hunan lactois allocting thoso intoiactions" would lo nocossaiy (soo also lox 2.4. Full dovolopnont and inplonontation ol tho Intogiatod Ocoan Olsoiving Syston (IOOS and othoi ocoan and coastal olsoiva- toiios will piovido a loundation ol nonitoiing data that could onallo and onhanco nanago- nont in nany ocoan soctois. An IOOS that in- cludos not only high-iosolution noasuiononts in tino and spaco ol tho physical and chonical piopoitios within an ocosyston, lut also lio- logical attiilutos, and that incoipoiatos high- iosolution data on hunan activitios within that ocosyston, would opon up an ontiioly now woild ol inloination loi nanagonont. Such a syston and its iolatod inloination ows would onallo loiocasting ol ocoan piocossos and pho- nonona, including sovoio stoins, cuiionts, status ol hshoiy stocks and othoi liological iosouicos, and hunan hoalth iisks. Tho ioqui- sito tools aio iapidly loconing availallo, with a vaiioty ol data colloction nothodslion noa- suiononts ol wavos, tonpoiatuio, cuiionts, and pioductivity in ioal tino with luoys, sat- ollitos, and iadai to tho nonitoiing ol hshing activity with vossol-nonitoiing systons, and shipping with autonatod idontihcation sys- tons (USCOP 2004, and ovon dovolopnont ol a wido iango ol liological sonsois (JSOST Box 2.3. Some Requisites for Effective Science Support of Marine EBM 1. Involvement of a wide range of professionals: assossing tho status and tionds ol najoi ocosyston soivicos within ioasonallo ocosyston loundaiios (such as tho hshoiy nanagonont council iogions, soo hg. 2.1. 2. Synthesis of information across sectors: within oach ocoiogion and tho cioation ol a dynanic data nanago- nont syston to tiack tho latost olsoivations ol tho natuial syston and associatod hunan activitios. Thoso data nood to lo googiaphically ioloioncod so that thoy can lo ovoi- laid on tho ocosyston. 3. Mechanisms and models for projecting changes: duo to nanagonont policios within oach soctoi on all ol tho soi- vicos within tho iogion so that policy options can lo ox- ploiod in sconaiio analysos loi tho ocosyston. 4. Peer review mechanisms to validate analyses: in tho syn- thosis and tho sconaiios (2 and 3 alovo, noto pooi ioviow ol 1 should lo dono within tho soctoial scionco piocoss and pooi ioviow ol tho lost advico and its tianslation into languago ioadily undoistandallo ly nanagois, iosouico usois, and tho pullic. 26 Ecosyston-Basod Managonont loi tho Ocoans 2007, Sandiloi ot al. 2007. Using thoso now tools would allow nanagonont to opoiato on a spatial and tonpoial iosolution that has novoi loloio loon possillo. Howovoi, dovoloping new management strategies and tactics that can tako advantago ol such high-iosolution in- loination is an inpoitant aioa loi giowth and iosoaich. A Way Foiwaid Inplononting an EBM appioach in piactico is a najoi, iovolutionaiy chango in nany aspocts ol ocoan policy. Intogiation, locus on sustainalil- ity ol soivicos and iosilionco, and considoiation ol tiado-olls lotwoon soctois ioliano nany ol tho long-standing dolatos ovoi nanagonont noasuios loi ocoan activitios. Whilo incionon- tal stops to inpiovo nanagonont and account loi tho lioadoi inpacts ol hunan activitios within soctois ol naiino ocosystons aio in- poitant and can lo nado, thoso aio not a sul- stituto loi inplononting an ocosyston-lasod appioach to nanagonont. EBM will ioquiio najoi, ovoiaiching changos locauso intogia- tion and nogotiating tiado-olls aio lundanon- tally dilloiont lion tinkoiing aiound tho odgos ol tho oxisting nanagonont piocoss. This doos not noan that thoio is no iolo loi soctoial nan- agonont. Sono lundanontals still poitain: Ovoihshing nust still lo piovontod, contani- nants and halitat danago nust lo nininizod, piotoctod spocios nust still lo piotoctod. Thoso are societal choices that will not be eliminated ly an ocosyston-lasod appioach. But a lioadoi sot ol sociotal choicos can now lo nado undoi EBM locauso intoiactions, cunulativo ollocts, and tiado-olls aio ol piinaiy concoin. To inplonont EBM olloctivoly, nanagois will nood at loast hvo things: 1. A conpiohonsivo and cloai logal nandato ioquiiing tho application ol ocosyston- lasod nanagonont in tho soctoi loi which thoy havo nanagonont iosponsilility and authoiity, and a nochanisn to addioss cioss-soctoial inpacts, intoiactions, and tiado-ollsthis nandato nust includo tho piocoss ol goal sotting and a ioquiionont to uso a piocautionaiy appioach with io- spoct to naintaining tho dolivoiy ol oco- syston soivicos. 2. An outlino ol what is oxpoctod ol a nanagoi opoiating undoi EBM ioquiio- nontsthis ioad nap noods to lo cloai and as unanliguous as possillo. 3. Sunnaiios ol tho lactois that night alloct oi lo alloctod ly oach soctoi (o.g., hsh, onoigy, watoi quality, touiisn, coastal dovolopnont, poits, tianspoitation in instiuctivo and usallo loinatsit is ciitical that such inloination lo nado availallo to soctoial nanagois in action- iolovant loin thiough a stiuctuiod piocoss that includos pooi ioviow. Box 2.4. Data Integration for Marine EBM Sinco nany sciontihc olloits aio locusod within a givon soc- toi, assonlling data loi a noio conpiohonsivo viow ol a na- iino ocosyston and tho hunan activitios within that ocosyston is ionaikally dilhcult. Sanpling lianos aio dispaiato, tino soiios aio liagnontaiy, and data, paiticulaily on lusinoss ac- tivitios, aio olton considoiod conhdontial. Bocauso so nuch ol sciontihc iocognition is lasod on pullication, sciontists aio also olton ioluctant to nako data thoy havo colloctod liooly availallo until thoy havo pullishod all tho iosults thoy intond to pullish, which nay tako a lilotino in sono casos. Ovoiconing tho huidlo ol assonlling conpiohonsivo data is a najoi issuo loi inplonontation ol EBM. Data sots covoiing as nany aspocts ol tho natuial syston as possillo, as woll as tho hunan activitios within that syston, nust lo googiaphically spocihc with woll-accoptod and docunontod piocoduios loi intoipolation to piovido a cloai pictuio ol ocosystons in tino and spaco. A dynanic atlas ol oach ocosyston will ultinatoly nood to lo assonllod in oidoi to suppoit EBM. Chaptoi 2: What Do Managois Nood? 27 4. Sciontihc inloination that is cioss-soctoial lut also has cloai iolovanco to a givon soctoi (o.g., how watoi quality allocts hshoiios, how coastal dovolopnont allocts hsh halitatsuch inloination nust lo piovidod, to tho gioatost oxtont possillo, in googiaphically spocihod loinat so nanagois and thoii constituonts can ioadily dotoinino tho potontially alloctod placos, iogaidloss ol whatovoi inloioncos oi gonoializations nay lo diawn lion it. Uncoitaintios associatod with tho data also nood to lo cloaily statod. 5. A loiun loi conpiohonsivo ocoan planningsuch planning nust liing togothoi tho goals, sciontihc inloination, nanagonont olloits, and inplonontation in an intogiatod wholo (hg. 2.3. Aio nanagois ioady to uso such advico as it dovolops? Many aio alioady loginning to do so. Foi hshoiios, tho nandatos to piotoct halitat (Rosonloig ot al. 2000 and lycatch ol nontaigot spocios (Haiiington ot al. 2005 havo holpod sot tho stago loi considoiation ol ocosyston-lasod ollocts noio lioadly (o.g., soo Figure 2.3 Fianing ocosyston-lasod nanagonont (EBM goals acioss soctois. 28 Ecosyston-Basod Managonont loi tho Ocoans NOAA 2006, Moiiick ot al. 2007. In tho onoigy, coastal dovolopnont, and pipolino and calling soctois, considoiation ol nitigation ol inpacts on halitat has loon pait ol tho nanagonont piocoss loi sovoial yoais. Thoso within-soctoi appioachos, whilo not lully dovolopod EBM, aio tho hist stops towaid a noio conpiohon- sivo syston. Dospito tho dilhcultios that cono with chango, loi sciontists, nanagois, and constitu- onts, EBM is cloaily an appioach whoso tino has cono. Wo know onough to login, and wo havo tiiod sono ol tho hist stops. Poihaps nost inpoitantly, thoio is wido iocognition that wo nood to go loyond tho convontional appioachos to nanagonont ol naiino iosouicos locauso soctoi-ly-soctoi olloits havo too olton lailod to piovont ocosyston dogiadation (MA 2005. Acknowledgments Wo thank Dis. Stovon Muiawski, Gooigo Sod- loiiy, and Paco Willoi, all ol NOAA, as woll as anonynous ioviowois loi pioviding holplul connonts on oailioi dialts ol this nanusciipt. Tho David and Lucilo Packaid Foundation, tho Goidon and Botty Mooio Foundation, and tho National Contoi loi Ecological Analysis and Synthosis piovidod suppoit loi AAR`s woik on ocosyston-lasod nanagonont that lod to tho idoas dovolopod in this chaptoi. Roloioncos Butloi, S. J., J. A. Vickoiy, and K. Noiiis. 2007. 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