Fisheries are a cornerstone of global food security, providing a critical source of protein for millions of people worldwide. However, overexploitation, habitat degradation, and climate change have placed numerous fish populations at significant risk, jeopardizing the livelihoods of communities that depend on them (Angel et al., 2019; Panudju et al., 2023). Over recent decades, achieving sustainable development has become a central goal for fisheries management (Franco-Meléndez et al., 2021). To support this objective, various frameworks and guidelines have been established, including the Code of Conduct for Responsible Fisheries (FAO, 1995) and the Ecosystem-Based Fisheries Management Guide (Garcia et al., 2003), among others. These frameworks address the complex interconnections between fishing activities, marine and coastal ecosystems, and socioeconomic dimensions, aiming to ensure the long-term provision of ecosystem services for humanity (Estévez et al., 2020).

Despite these efforts, the implementation of such approaches has proven insufficient in many cases (Defeo and Vasconcellos, 2020; Coll et al., 2013; Pitcher et al., 2009). As result, countries continue to face the challenge of translating conceptual frameworks into actionable strategies and applying effective administrative mechanisms to achieve sustainable fisheries (Estévez and Gelcich, 2021).

Globally, various management strategies have been implemented to ensure the sustainable administration of fisheries. In the mid-20th century, rights-based fishery management (RBFM) models emerged as a promising approach for promoting the sustainable use of marine resources (Cancino et al., 2007; Uchida et al., 2012). These models achieve sustainability by granting exclusive rights to access and extract marine resources (Wilen et al., 2012). Among the most widely adopted of these approaches is the Territorial Use Rights for Fisheries (TURF) model (Franco-Meléndez et al., 2021; Quynh et al., 2017; Auriemma et al., 2014; Uchida et al., 2012; Gelcich et al., 2010; Hilborn et al., 2005). TURFs provide resource users, such as fisher organizations, with the capacity to co-manage activities within clearly defined spatial boundaries. This model promotes the rational use of marine resources by integrating conservation objectives with the economic and social needs of stakeholders (Franco-Meléndez et al., 2021; Charles, 2011; Beitl, 2017).

Integrated management is widely acknowledged as an ideal framework at the international level (Anderson et al., 2015). However, practical decision-making in public resource management frequently faces shortcomings due to inadequate planning and poor coordination (Alencar et al., 2020). Overcoming these challenges necessitates the development of multidisciplinary and multidimensional evaluation models that support the achievement of sustainable development objectives. Such models are crucial for providing a comprehensive understanding of socio-ecological systems, particularly when analyzed from localized perspectives (Franco-Meléndez et al., 2021; Hernández Aguado et al., 2016). In this context, the Performance Evaluation (PE) emerge as an invaluable tool for evaluating the benefits derived from fisheries. The PE models offers critical insights into the interactions between management regimes, external resources, and community dynamics. By doing so, it helps elucidate the distribution of benefits among stakeholders, thereby enhancing the understanding of fisheries’ socio-economic and ecological performance (Anderson et al., 2015).

In Chile, the management of marine resources through Territorial Use Rights for Fisheries (TURF) models is operationalized under the Management and Exploitation Areas for Benthic Resources (MEABR) regime, as established by the Chilean General Fisheries and Aquaculture Law. This framework has significantly transformed resource management approaches. However, the outcomes of its implementation have elicited divergent opinions regarding its contribution to the sustainability of hydrobiological resources. Gelcich et al. (2008) via comparative subtidal surveys comparing the abundance of targeted benthic species within MEABR and outside them evidenced a positive effect of the MEABR in central Chile. Arias and Stotz (2020) conducted an integrated analysis by implementing a set of economic, biological, social, and institutional variables across 109 areas located in the Coquimbo and Atacama regions, resulting in generally poor performance for biological and economic dimension but good performance in social and institutional aspects. Franco-Meléndez et al. (2021) analyzed 19 areas in the Bio Bío region using the RAPFISH methodology, demonstrating the success of the administrative measure. In contrast, as well, in Chilean Patagonia, Hamamme and Ortiz (2022) observed no positive effect of MEABR on different indicators (e.g. size, density and weight) of commercial species. Regardless of the results obtained, these studies primarily focus on comparative analysis, defining levels of success based on their own experiences and expectations, which makes it difficult for these results to be considered in decision-making process regarding the management of the administrative measures. These opposing views stem from the absence of explicit objectives and indicators set by the fisheries administration to guide the vision and interpretation under which the achievement of administrative measures should be evaluated. The lack of institutional objectives and indicators has led each study to present different evaluation methods, models, and variables, a situation that does not ensure the generation of appropriate knowledge for management (Bennett et al., 2021).

Development programs and policies are typically designed to change outcomes. Knowing whether these changes are achieved is a crucial question for public policy. Evaluations are part of a broader evidence-based policy-making agenda focused on achieving outcomes, and they are useful in designing and making decisions oriented towards the objectives pursued by the policy or program (Gertler et al., 2016). In this sense, performance evaluation is considered a management tool aimed at providing systematic and continuous information on the achievement of set objectives, whether for a regime, program, or other predefined actions. The purpose is to support decision-making strategies to achieve better efficiency and effectiveness in the use of public resources (Bonnefoy and Armijo, 2005).

The aim of this study is to conduct a comprehensive assessment of the management areas for the exploitation of benthic resources regime in Chile, focusing on their principal benthic resources and aligning with the expectations of decision-makers. By integrating biological, economic, and administrative dimensions into the performance evaluation of fisheries management measures, this study introduces a novel framework for multidimensional analysis. Finally, as this framework was developed in collaboration with fisheries managers, this approach serves as a valuable tool for decision-makers to evaluate progress toward sustainability objectives and to provide actionable recommendations for enhancing fisheries governance.

The historical Performance Evaluation (PE) considered the total universe of 630 management areas that have reported BSS and TR from 1998 to 2020. Evaluations were conducted at the individual MEABR level and grouped at the national level through the normalization and aggregation of information for each area of interest.

Any evaluation process aims to verify the achievement of objectives, expectations, or actions that are intended to be measured (Bonnefoy, 2006; Anderson et al., 2015; Bennett et al., 2021). The Fishery Performance Indicators (FPI) on the other hand, requires a clear understanding of the key factors that best represent the achievement of the proposed objectives and the design of output variables that adequately meet the evaluator’s needs (Anderson et al., 2015).

The general methodology for establishing evaluation indicators adopts a structured approach to ensure the consistency, relevance, and reliability of the metrics used to assess performance. This methodology is rooted in principles of scientific rigor and is designed to address the multifaceted nature of evaluations across biological, economic, and administrative dimensions. PE follows a cyclical process, enabling the assessment of progress toward achieving predefined objectives while supporting evidence-based public decision-making to attain a desirable state within the framework of the administrative regime ( Figure 1 ).

In the past, fisheries management and governance were primarily centered on ensuring biological sustainability to maximize harvests while achieving economic efficiency. However, contemporary governance approaches increasingly emphasize the dual objectives of ecological sustainability and human well-being (Bennett et al., 2021). This paradigm shift reflects a growing recognition of the need for more holistic and integrated management strategies that balance ecological and socio-economic outcomes.

The Performance Evaluation (PE) serves as a critical tool for assessing the extent to which fisheries management objectives are achieved. By establishing a baseline, PE reveals progress toward institutional goals and facilitates the development of strategies to address gaps in achieving desirable outcomes. The results of this study provide a comprehensive historical perspective on the evolution of the MEABR regime, offering insights into its effectiveness in meeting sustainability objectives. From the perspective of decision-makers, the findings reduce uncertainty regarding the success of this management measure, demonstrating that while the MEABR model is subject to improvement, it has successfully maintained fisheries at “acceptable” levels. These levels align with the administrative authority’s expectations across biological, economic, and administrative dimensions.

Integrated management is widely regarded as a global ideal in resource governance (Anderson et al., 2015). However, in practice, public resource management decisions often suffer from inadequate planning (Alencar et al., 2020). It is, therefore, crucial to advance multidisciplinary and multidimensional evaluation models that support sustainable development and promote a more integrated understanding of resource systems (Franco-Meléndez et al., 2021; Hernández Aguado et al., 2016). In this context, the multidimensional analysis of the MEABR regime enabled the establishment of clear institutional and formal objectives across three evaluation dimensions, contributing to a transition toward a public management model that transcends traditional decision-making focused solely on biological parameters, such as quota allocation.

The multidimensional performance evaluation contributes to a more integrated governance model. Previous studies have highlighted the positive effects of Chilean MEABRs on ecological, economic, and social dimensions, including conservation benefits and the regime’s ability to foster self-organization among fishers (Gelcich et al., 2008; Defeo and Vasconcellos, 2020; Basurto et al., 2013). Additionally, MEABRs represent the first legal framework for co-management in Chilean fisheries governance, further underscoring their importance in advancing sustainable practices (Defeo and Vasconcellos, 2020).

From a biological dimension of our performance analysis, the key MEABR resources evaluated in this study demonstrated either positive trends or stable temporal variations in density indices. These findings indicate a positive conservation effect on these resources within the MEABR regime. Such trends are consistent with the effectiveness of co-management mechanisms, as evidenced by sustained or increasing resource densities in many instances. However, certain biological indicators have negatively influenced the overall performance. Although population densities of key resources, including loco, sea urchins, limpets, and others, have remained stable or increased, the Area Quality Index (AQI) has consistently fallen below acceptable thresholds.

The AQI can be considered an indicator of the carrying capacity of MEABRs, as it links changes in species density with variations in their condition index. AQI results may indicate insufficient environmental capacity to provide optimal growth conditions for resources, suggesting the need to manage not only the primary resources within MEABRs but also to address the ecological requirements of these resources. For example, the loco (Concholepas concholepas) is a carnivorous snail that feeds on bivalves, barnacles, and tunicates. The absence of sustainable management ensuring food availability for the loco or other exploited species within the MEABR could ultimately affect the system’s carrying capacity.

One critical factor contributing to the low AQI performance for various analyzed species could be the interaction between the extraction of multiple resources within each MEABR, which are often managed independently. For instance, the increased harvesting of brown algae, a resource that has become the most exploited species (in terms of annual tonnage) within the MEABR over the last decade (Servicio Nacional de Pesca y Acuicultura (SERNAPESCA), 2023), may have a general impact. Brown algae are foundational species, and their extraction has been shown to affect commonly exploited species within MEABRs, such as the loco (Bularz et al., 2022). Understanding and managing the interconnections between different components of MEABR diversity according to the extracted resources could lead to better resource management within each MEABR.

The performance evaluation of brown algae within the MEABR regime was conducted using aggregated data from the Lessonia genus, without differentiating between intertidal species (Lessonia berteroana and L. spicata) and subtidal species (L. trabeculata). This aggregation may lead to inaccuracies in the assessment, as species-specific responses to management practices can vary significantly. Evidence suggests that intertidal and subtidal algae exhibit distinct recovery dynamics in response to fishing pressure. Intertidal algae, for instance, have demonstrated relatively rapid recovery after harvesting (Canales et al., 2018). In contrast, subtidal algae exhibit a slower recovery rate following extraction (Bularz et al., 2022). Despite these differences, the current evaluation provides a general understanding of brown algae performance, which remains at a “below acceptable” level within the MEABR regime. This poor performance is primarily driven by the Area Quality Index (AQI), even though density indices such as the Historical Trend of Density (HTD) and the Temporal Density Ratio (TDR) were observed at desirable levels. Notably, increased densities in brown algae populations have been interpreted as a negative signal when growth predominantly consists of juveniles (Figueroa-Fábrega et al., 2017). The AQI, which incorporates indicators of body condition, likely reflects a trend of population “juvenilization,” characterized by low individual biomass relative to size. The underperformance of brown algae within MEABRs is a critical concern for fisheries managers, as artisanal harvesting represents the primary threat to these species along the Chilean coast (Krumhansl et al., 2016). This situation underscores the need for revisions to algae management strategies under the MEABR and other fisheries regimes. While the current condition of brown algae within MEABRs is suboptimal, evidence suggests that their status is comparatively better than under other Chilean fisheries management systems, such as Management Plans (González-Roca et al., 2021; Gouraguine et al., 2021). These findings highlight the potential of the MEABR to support improved conservation outcomes, provided that management practices are adapted to address the specific vulnerabilities of intertidal and subtidal algae species.

Keyhole limpets were analyzed similarly to brown algae, with the evaluation conducted at the genus level (Fissurella), integrating multiple species. The four most harvested species in MEABRs are F. latimarginata, F. cumingi, F. nigra, and F. maxima. All these species are predominantly subtidal; however, some intertidal species, such as F. crassa, are also harvested. Generally, keyhole limpets within MEABRs have been reported to perform better than in open-access fisheries (Castilla and Fernandez, 1998; Gelcich et al., 2008; Defeo et al., 2014; Andreu-Cazenave et al., 2017). This study reinforces this evidence, as our analysis found that keyhole limpets achieve an “acceptable” performance level within the MEABR regime. However, certain issues related to illegal fishing within MEABRs must be addressed in the management of these resources (de Juan et al., 2022), as this is a common problem within the MEABR (e.g., in the case of the loco; Romero et al., 2022).

Regarding the macha (Mesodesma donacium), our results indicate an overall performance level categorized as “below acceptable,” which aligns with the reported collapse of this fishery in Tongoy Bay, Chile (Aburto and Stotz, 2013). The collapse observed in Tongoy Bay has been associated with a lack of recruitment and high natural mortality rates (Aburto and Stotz, 2013). These highly variable conditions might be a general characteristic of macha, potentially explaining the significant interannual variability observed in the performance analysis conducted in our study.

In the economic dimension, performance has generally remained within acceptable levels, with the regime generating positive returns for its users, as previously reported (Romero and Melo, 2021). However, as evidenced in this evaluation, there are sectors where economic benefits fall below desirable thresholds. While the MEABR regime represents an economic activity, its purpose is not solely to maximize short-term profits but rather to ensure the conservation and sustainable management of fishery resources. This perspective aligns with various studies highlighting the non-intensive nature of extractive activities under this regime. Romero and Melo (2021) emphasize that the MEABR regime provides supplementary income to artisanal fishers rather than serving as their primary source of income. Thus, fishers do not rely exclusively on MEABR fisheries as their sole source of revenue, contrary to assumptions made in other contexts (Arias and Stotz, 2023). Furthermore, the greater the availability of alternative economic activities (including fisheries under other regimes), the lower the likelihood of external threats such as illegal fishing. This approach has significant implications for resource management and utilization within the MEABR. Fishers operating under this regime are not committed to intensive exploitation but tend to adopt moderate and sustainable resource-use strategies (Carpenter and Seki, 2011). In this context, resource-use indicators may exhibit biases related to fisheries administration decision-making if a lack of extraction is mistakenly interpreted as a lack of resources within the MEABR.

Geographically, significant differences in economic performance are evident, with northern Chile exhibiting the highest profitability in the sector. This observation aligns with findings by Arenas et al. (2021) and Romero et al. (2020), who reported similar patterns regarding the distribution of economic benefits. The results in northern Chile are primarily attributed to income derived from the extraction of brown algae, an economic activity concentrated in the northern regions of Antofagasta, Atacama, and Coquimbo, which account for over 80% of this activity (Romero et al., 2020). Additionally, the contribution from loco (Concholepas concholepas) extraction in the Coquimbo region, which accounts for approximately 22% of the total national landings, further supports this trend (Romero et al., 2019).

The administrative dimension of the MEABR regime has notably outperformed other domains, achieving “desirable” levels, as observed here and in other studies (Arias and Stotz, 2020). The integrity of information and the timeliness of report submissions are well-managed, although some anomalies have been identified. It is essential for future evaluations to incorporate quality indicators that assess not only the temporal relevance of information but also the quality and representativeness of the data used to analyze the state of resources.

The comprehensive analysis offers valuable insights into the current status of the MEABR regime and identifies opportunities for its improvement. It is important to emphasize that the indicators considered in the analysis indicate potential areas for enhancement. For instance, the biological indices primarily focus on density, with one case relating the temporal change in density to the body condition index (AQI). However, the biological dimension could be expanded to include other relevant factors, such as the size structure of the population. This would provide information about the presence of mature individuals and the recruitment of new individuals into the population, offering a more complete understanding of the resource dynamics. Moreover, it is essential to prioritize the inclusion of sensitive and high-risk indicators, particularly those related to data quality, ensuring a realistic and accurate assessment of the data provided by the Territorial Resource (TR) entities.

Nevertheless, several limitations must be addressed, particularly those arising from the lack of data necessary to estimate or propose additional indicators. The absence of clear standards and robust procedures for the collection of biological and economic data introduces biases into the methodologies employed and compromises the presentation of information, which ultimately affects the analysis and interpretation of results (Stotz et al., 2005; Parma and Orensanz, 2012; Ariz et al., 2018). Furthermore, the lack of institutional requirements for the submission of information exacerbates the issue, particularly in the economic dimension, limiting the availability of data and reducing the certainty of its results. Therefore, it is imperative to prioritize the improvement of data quality in future evaluations. This could involve the development of quality standards and the establishment of clear procedures for data collection, engaging both the fisheries systems and their stakeholders, including fishers (Bennett et al., 2021).

One significant advantage of the comprehensive analysis over the current administrative approach lies in its broader evaluation horizon, which extends beyond the mere establishment of quotas for each species exploited within the MEABR. By incorporating economic and administrative dimensions, the analysis considers factors related to the incentives that fishers face when making decisions about managing these areas. Although this study offers a generalized overview of the evolution of the MEABR regime, future research should delve deeper into the factors that enhance the success of achieving its objectives, exploring additional aspects that could further strengthen the governance and sustainability of the system.

The multidimensional performance evaluation, grounded in the state’s objectives, serves as a valuable tool for fisheries management. It provides crucial insights into the extent to which the expected sustainable development goals for the MEABR regime have been achieved, while also highlighting key gaps associated with the measure. By identifying these gaps, the evaluation offers decision-makers a robust foundation for developing targeted strategies and programs that address the identified needs, ultimately enhancing the effectiveness and sustainability of the management regime.

In general, the MEABR regime has demonstrated “acceptable” performance, successfully meeting the objectives of public institutions across various dimensions. However, areas for improvement have been identified, particularly within the biological dimension and the economic sustainability of certain sectors.

To enhance performance outcomes, it is essential to improve the systematization and quality of the data, ensuring both the accuracy and effectiveness of future performance evaluations. Adopting a continuous improvement framework, alongside the implementation of a robust action plan, will be crucial for ensuring the long-term sustainability and success of the MEABR regime.

Furthermore, to refine performance evaluation processes and increase the representativeness of the results, it is necessary to incorporate additional indicators that either complement or replace the current metrics. It is also advisable to persist in evaluating the causal factors that contribute to the success of certain areas, providing valuable insights for decision-making on which factors require strengthening to optimize the performance of the MEABR regime.

Given the defined objectives across the three key dimensions, we propose that the institution consider adopting an integrated management evaluation for the MEABRs. This approach could help address one of the principal challenges in implementing an ecosystem-based approach to fisheries management in Chile.