A new statewide survey reveals which strategies for participation work best to bring commercial fishers and recreational anglers into decision-making processes.  

The Fisheries Reform Act of 1997 (FRA) was enacted in part to balance the interests of the commercial and recreational fishing industries, following years of conflict and disagreement between the two sectors. However, fisheries management has remained contentious under the FRA, with recent events (such as the 2025 Shrimpgate controversy) demonstrating that decision-makers may not always adequately consider public input. 

Research Need

Despite the FRA’s mandate, managers have noted inconsistent participation in forums meant to solicit public input, including meetings, workshops, surveys, and public comment opportunities. Some fishers have actively avoided participating in these activities, due to frustration and distrust stemming from past experiences with management. COVID-19 further complicated participation as many meetings moved to online formats. 

This dilemma is consistent with trends in fisheries management beyond North Carolina. While many management systems and governing bodies have shifted towards participatory models of co-management, few have actually measured progress towards goals for public input. In North Carolina, there is a need to better understand not only current participation levels but also whether current engagement is adequate and representative of key user groups. 

What did they study?

To evaluate participation, a social science research team conducted a large-scale survey of North Carolina fishers. The survey contained questions about participation in decision-making activities, motivations for participation, trust in fisheries managers, understanding of management processes, and demographic information. 

The team distributed the surveys online and in print to an equal number of commercial and recreational fishing license-holders. Surveys were completed by 272 commercial fishers and 264 recreational anglers. 

What did they find?

Both commercial and recreational fishers participated in decision-making infrequently. Most participated in management meetings, public comment, workshops, and surveys less than once every few years, with nearly 13% of commercial fishers and 40% of recreational anglers indicating that they had never participated in any engagement opportunities. Across groups, less than 8% of fishers agreed that “managers listen to my input.” 

There were some differences in participation between commercial and recreational fishers. Commercial fishers were significantly more likely to participate in decision-making than recreational anglers. Commercial fishers were also more likely to participate if they belonged to a fishing organization or participated in multiple fisheries. 

Overall, commercial fishers were more dissatisfied with current regulations and more frustrated with the management process than recreational anglers. Commercial fishers actively distrusted managers, while recreational anglers neither trusted nor distrusted managers. 

The only factor that correlated with increased participation for both fishing sectors was greater understanding of management entities. Another notable finding was that participation was highest in the decision-making activities with the lowest costs and time commitments. This included surveys and public comment. 

So what?

This research found that both commercial and recreational fishers participate infrequently and are likely not fully represented in decision-making processes. The study suggests that to repair commercial fishers’ trust in management, managers can more clearly communicate how they will consider public participation in decision-making moving forward. 

Reading

Bratton, R., Havice, E., & Wade, E. (2026). Commercial and recreational fisher participation in marine fisheries management decision-making. Marine Policy, 185, https://doi.org/10.1016/j.marpol.2025.106988

The North Carolina Collaboratory funded this study as part of the Legislative Study of Coastal and Marine Fisheries. 

Rachel Bratton (above) is a fisheries and environmental social scientist who has worked on the U.S. Atlantic coast from New England to Florida. She recently relocated to Nova Scotia to pursue a Ph.D. at Dalhousie University, where her research will examine demographic challenges in commercial fisheries in the Canadian Great Lakes. 

Eric Wade is an assistant professor in the Department of Marine, Earth, and Atmospheric Sciences at North Carolina State University. His research explores the social and cultural dimensions of human-ocean relationships, including marine energy, fisheries, aquaculture, and climate change mitigation.