Adaptive Governance and Policy Evolution of the Yangtze River Fishing Ban: A Quantitative Analysis (2002–2024)

The Yangtze River fishing ban policy is a central measure in China’s watershed governance, and the adaptability of its policy tools and collaborative mechanisms directly influences the sustainability and effectiveness of basin management. This study systematically examines the evolution of policy themes, the characteristics of policy tool combinations, and their alignment with intergovernmental collaborative governance needs, drawing on 120 central government policy texts issued between 2002 and 2024. Using frequency analysis and policy tool coding, the findings reveal that (1) policy themes have shifted from fishery resource control to comprehensive ecological protection and, more recently, to integrated watershed management, thereby driving progressively higher demands for intergovernmental collaboration. (2) The policy tool structure has long been dominated by environmental tools, supplemented by supply-side tools, while demand-side tools remain underdeveloped. Imbalances persist, such as excessive emphasis on resource inputs over capacity building in supply-side tools, rigid constraints with limited flexibility in environmental tools, and a reliance on publicity while underutilizing market incentives in demand-side tools. (3) Tool combinations have adapted to changing collaboration needs, evolving from rigid constraints and fiscal subsidies to institutional frameworks and cross-regional cooperation, ultimately forming a governance model characterized by systemic guarantees and diversified collaboration. Based on these findings, this study recommends strengthening long-term governance mechanisms, improving cross-regional collaborative structures, authorizing local governments to design context-specific implementation details, enhancing fishermen’s livelihood security and social development, expanding public participation and oversight, and exploring market mechanisms for realizing ecological product value. These measures aim to advance collaborative governance in the Yangtze River Basin and foster a balanced integration of ecological protection and social development.