Integrated ocean management in Australia: the impact of persistent problems

Integrated ocean management (IOM) is regularly suggested in response to some of the fundamental complexities of ocean governance and is considered an important mechanism for securing more sustainable outcomes for future generations. It is defined as an approach and set of tools that link (integrate) planning, decision-making, and management arrangements in a unified framework. IOM is often prescribed as the ‘holistic solution’ to managing the complex relationships associated with ocean resources and their users. The literature argues that effective IOM can help overcome governance challenges associated with policy overlap, conflict, management inefficiencies, and inconsistencies. However, the successful application of IOM approaches around the world has been limited. When attempted, IOM has often encountered difficulties and barriers associated with persistent problems related to the structures and processes of the ocean governance system in which it is being applied. In Australia, a country with a special social, economic, and cultural relationship with marine spaces, attempts to implement IOM have been regularly constrained and hampered, resulting in ineffective policy, or reduced outcomes.
As challenges associated with climate change and the rapid industrialisation of marine spaces have increased, little has been done to understand what is creating these persistent problems, how they impact IOM outcomes, how to improve policy design with respect to them, and how to ensure effective IOM policy responses in the future. This thesis addresses these gaps by investigating why IOM continues to fall short of the suggested ideal, what changes can be made to facilitate more effective applications of IOM, and what Australia might do to ensure more equitable, transparent and sustainable management moving forward. Rather than focusing on implementation of IOM, this thesis places an emphasis on the role of effective policy design and development considerations for achieving improved IOM outcomes, and the impacts of persistent problems in these phases of the policy process.
Building upon the literature on IOM and taking an institutional approach to address research questions, this thesis utilises an ‘IOM Persistent Problems Framework’ which assesses Australia’s persistent problems, and their impact on IOM. An institutional approach emphasises the importance of formal and informal rules, norms, and organisations in shaping social behaviour, interactions, and outcomes. By identifying persistent problems though an institutional approach, the primary barriers to effective policy design and development of IOM can be considered, moving beyond the issues experienced by practitioners on implementation of IOM. Examples of IOM initiatives from across Australia are then analysed and supported by empirical data gathered through a qualitative approach from semi-structured interviews that were conducted with experts and key informants from industry, academia, and government.
Australia’s historical approach to ocean governance is examined, focusing on the development, and subsequent impacts, of the Offshore Constitutional Settlement (OCS), the crucial legal framework that underlies many of Australia’s persistent problems. Next, persistent problems associated with the structures of ocean governance are identified, such as embedded jurisdictional issues, siloed responsibility across sectors and management agencies, difficulties in operating across natural boundaries, and political challenges. The impact of these problems on IOM is considered alongside the barriers to effective policy design and development. The persistent problems associated with the processes of ocean governance are then analysed including the perception of ocean governance, transparent and equitable discourse, engagement and partnerships, and a lattice of leadership.
Finally, this thesis discusses potential changes to improve IOM outcomes, and suggests a greater focus on ‘policy fit’, particularly in the policy design and development phases of IOM. A new concept developed based on data collected and analysed in this thesis, policy fit is defined as the context, needs, and characteristics of a given situation or issue. It emphasises the importance of tailoring policies to suit the unique circumstances and challenges faced in a particular domain. A policy is considered to have a good fit when it effectively addresses the complexities and nuances of the situation at hand, maximising its relevance and impact. Achieving policy fit involves a thorough understanding of the context, including the socio-economic, cultural, environmental, and political factors that may influence the success or effectiveness of the policy. By focusing on policy fit, lessons from previous policy outcomes, positive and/or negative, can be incorporated into any further change.