Voluntary intergovernmental cooperation to conserve the High Seas
Full Solution
Sargassum habitat
IUCN Don Kincaid
The Sargasso Sea Commission presents an innovative approach to intergovernmental cooperation to conserve the Sargasso Sea. Established in August 2014, the Commission was created by five governments to exercise a stewardship role for the Sargasso Sea and keep its health, productivity and resilience under continual review. It will develop further recommendations for protection measures for this high seas area.
Last update: 28 Mar 2019
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Context
Challenges addressed
over fishing, land-based pollution and heavy volumes of transatlantic shipping
The Sargasso Sea is under threat from a range of human impacts, including overfishing, heavy volumes of transatlantic shipping, and land-based pollution from plastics which collect in the gyre. These threats impact the health of the global ocean as well as adjacent European and American domestic ecosystems because the Sargassum is a nursery for many important species.
Location
Sargasso Sea
Caribbean
North America
Process
Summary of the process
Creation of a credible, scientific basis provides a “baseline” characterization of the ecological area, allowing for the clear identification of conservation priorities, information gaps and entities to engage. Formal recognition of the ecosystem by reputable bodies/regimes like the CBD facilitates an invitation to governments to support voluntary collaboration through and become signatory of a political statement like the Hamilton Declaration. This offers leverage when seeking government support international protection measures. Due to the regulatory inertia and long-term nature of international policy processes, initial participation at meetings and development of analyses should begin immediately after creation of the preliminary scientific evidence base.. Establishment of a Commission or other entity to serve in a stewardship role should be the final step, as a lasting legacy of the initiative. The Commission, working with governments who are party to the international/regional organizations, will then carry forward any pending protection measure discussions initiated earlier in the process, as well as expand work into new areas.
Building Blocks
Creating the scientific evidence base
A Summary Science Case was compiled to provide the initial basis for international recognition of the Sargasso Sea ecosystem and its threats. This desk study was supplemented with specific analyses on shipping and fishing activities, and the European eel, to initiate science-driven discussions with interested governments about the need for establishing appropriate management and protection measures within the existing legal framework.
Enabling factors
Available peer-review data on long-term time series of oceanographic conditions; data on species which utilize the area Willingness of scientists in Bermuda, the UK and the US to submit written summaries of their work on a volunteer basis Identification of expert consultants that maintain strong scientific reputations with governments and secretariats of international/regional organizations, for targeted studies; available funds for those studies
Lesson learned
Additional resources would have allowed for more in-depth Science Case that could have analyzed potential threats to the system in more detail, provided more time for compilation, offered expert workshops and given honorarias for summary pieces Due to large size and scale of precedent set by this initiative when compared to past high seas MPA efforts, there was a demand for a fairly high burden of proof. Difficulty in supporting causal linkages between human activities and effects on the ecosystem in a data limited environment of the open ocean.
Seeking international recognition for ecosystem
Support from multiple governments for international collaboration was gained after the Sargasso Sea was recognized internationally, through formal bodies, as an important ecosystem. Designation as an Ecologically and Biologically Significant Area (EBSA), and mention in the UN General Assembly Annual Omnibus Resolution on Oceans and Law of the Sea provide legitimacy for government involvement.
Enabling factors
The initial Summary Science Case led to the basis for designation as an EBSA by CBD Parties. A scientific-expert driven process, working on a regional scale, provides a formal designation which can be leveraged when seeking government support for protection measures at international and regional organizations. Acknowledgement in the 2012 and 2013 UN Omnibus Resolution on of the Alliance’s efforts to raise awareness of the ecological significance of the Sargasso Sea, communicates the importance of the area to the full General Assembly.
Lesson learned
Formal international recognition facilitated the approach to governments bordering the Sargasso Sea, or those interested in regional approaches to high seas protection, leading to the Hamilton Declaration Signatories and other supportive governments who plan to join the Declaration over time.
Development of international protection measures
A combination of providing strong, credible science and networking with governments (both scientists and political representatives) keeps an issue on the agenda and provides the necessary discussion documents to move it forward through the existing processes of each entity. Regular attendance at meetings allows SSA to foster relationships with scientists from management entity and serve as a credible resource on the Sargasso Sea.
Enabling factors
Identification of expert consultants that maintain strong scientific reputations with governments and secretariats of international/regional organizations, for targeted studies; available funds for those studies Scientific analyses remain silent on suggested management measures or approaches to avoid politicizing the document, and therefore losing credibility
Lesson learned
Transparent partnerships can be developed to fill information gaps. SSA consultants provided scientific analyses to meet information needs defined by the management entity. On-going communication between SSA, Secretariats of international/regional organizations and co-chairs of scientific committees is critical Regulatory Inertia - entities maintain a very high burden of proof of negative impacts from a specific human activity before they will contemplate protective measures Existing fragmented high seas governance system means little sharing of information and expertise across sectors. There is little willingness to accept lessons from other sectors or embrace an ecosystem context beyond individual organizational mandates.
Establishment of the Sargasso Sea Commission
In the absence of any legally binding instrument for the management of the HS/SS, voluntary international cooperation can exercise a stewardship role at the regional scale. The March 2014 Hamilton Declaration on Collaboration for the Conservation of the Sargasso Sea, signed by five governments (the Azores, Bermuda, Monaco, United Kingdom and United States) established a Sargasso Sea Commission which has no management authority but will “keep the Sargasso Sea’s health, productivity and resilience under continual review.”
Enabling factors
Political will to sign non-binding Declaration and to work at a regional level within the context of broader discussions about a global framework for high seas MPAs Willing scientists of international repute to serve in a volunteer capacity as Commissioners
Lesson learned
TBC - Please contact solution provider for more information
Impacts
Social: Increased understanding of importance of Sargasso Sea as a global resource and the impacts of human activities in an open-ocean environment Economic: Healthier fishing grounds for commercial and recreational fishermen, resulting in trickle-down tourism benefits to Bermuda. Ecological: Declaration by Bermuda of its EEZ as a marine mammal sanctuary and a Sister Sanctuary to the Stellwagen Bank US National Marine Sanctuary Consideration by ICCAT as first Ecosystem Based Fishery Management Pilot, possibly changing the way targeted stocks and bycatch are managed over time.
Beneficiaries
Governments interested in developing high seas protections in other areas of the world, parties to Regional Fisheries Management Organizations (RFMOs) and/or the International Maritime Organization (IMO) and commercial and recreational fishermen.
