Assessing the performance of a participatory governance transformation in small-scale fisheries: A case study from Uruguay

The crisis in small-scale fisheries (SSFs) is worsened by weak governance structures, requiring urgent transformation. Participatory arrangements like co-management offer potential to enhance resilience in these social ecological systems. However, the performance of collaborative governance modes must be evaluated to support institutional learning, refine governance structures, and ensure the legitimacy of transformative changes. In Uruguay, Local Fishery Councils (LFCs) were institutionalized a decade ago to involve fishers in managing and governing SSFs. This study assesses the LFC for the yellow clam SSF using three approaches: analysis of LFC meeting minutes, compilation of stakeholder perceptions, and analysis of social networks. The study found a decline in session frequency due to limited resources caused by the termination of an externally funded project. Performance indicators from the minutes identified recurring concerns on assessment, governance, and management, and issues related to monitoring, control, and surveillance. The influence of markets and the impact of red tides on fisheries performance were also brought up. Stakeholders perceived successful management solutions achieved through collaborative efforts, supporting co-management and resource recovery progress. However, social network analysis revealed communication patterns marked by core-periphery structure, showing partial disconnection and reluctance of the coastal marine authority to engage in inter-institutional collaboration. Despite challenges from climate change and markets, the LFC played a crucial role in co-creating solutions, empowering fishers with new skills and knowledge. Findings stress the importance of collaborative governance in promoting sustainable management and supporting institutional learning for transformative change in SSFs.