The hidden side of the co-production of small-scale fishery policy instruments

The participation of stakeholders in the design of fisheries policy instruments has emerged worldwide as good governance practice to ensure that policies are context-specific, address local needs and ecological realities, and, consequently, foster effective fishery management. We used an interdisciplinary perspective from policy science, institutional economics, and sociology to challenge this common view in least developed countries through a case study in Madagascar. We examined the co-production process (conception, development, and implementation) of small-scale fishery policy instruments addressing fishing and market processes using semi-structured interviews with representatives of local communities, the fishery sector, environmental non governmental organizations, research, and government bodies in 2021-2022. The results showed that participation of non-state stakeholders was significant primarily in the initial policy conception phase although local communities made a smaller contribution than other influencing agents (i.e., NGOs, experts, exporting companies). We also found that the final content of most policy instruments was changed with limited participation and/or lack of transparency, while decision-making largely remained under state control. The paper highlights the complexity and hidden aspects of apparent inclusive governance in small-scale fisheries in the South. To develop sustainable and actionable solutions to wicked resource use problems, efforts should extend beyond opportunistic consultation to ensure meaningful contribution of local actors and incorporate both local and scientific knowledge into the decision-making process through transparent institutions.