Recent developments in the tuna fisheries of the Federated States of Micronesia

Craig F. Heberer¹
Micronesian Maritime Authority
P.O. Box 124
Palikir, Pohnpei, Federated States of Micronesia

¹ Present address: Department of Marine Science, University of Puerto Rico, PO Box 908, Lajas, Puerto Rico 00667.

This paper provides a general overview of the 1993 fishing year in the Federated States of Micronesia (FSM), along with comparative statistics from previous years as a gauge to the current status of the three principal fisheries operating in the FSM EEZ, i.e., purse seine, longline and pole-and-line fisheries. Monitoring these fisheries is needed to identify interactions among fisheries, and to identify the potential impacts of these fisheries on devloping domestic tuna fisheries. A synopsis of recent developments in FSM domestic fisheries is included, along with information on current national and regional research projects.

1. INTRODUCTION

The 200 mile Exclusive Economic Zone (EEZ) of the Federated States of Micronesia (FSM) covers roughly 1,000,000 square kilometres of ocean. It is one of the largest fishing zones in the central and western Pacific Ocean, with rich fisheries resources. Revenues derived from these fisheries resources are the number one source of income for the nation and hence the number one priority. There has been a dramatic increase in the harvest of tuna from the FSM EEZ, and from the western Pacific as a whole, in the last 10 years. Coupled with this increase has been a general concern by many Pacific island countries that the regional stocks of tuna are reaching or exceeding the maximum biological sustainability. To address this situation, the Micronesian Maritime Authority (MMA), the main licensing and monitoring agency of the FSM National Government, requested in 1990 that the Food and Agricultural Organization of the United Nations retain an independent consultant to review the tuna fisheries operating in the FSM. The results of this study (Sibert, 1990a, 1990b), suggested that there was no compelling evidence to support effort reduction for the purpose of biological conservation of the tuna stocks. The study also recommended annual harvest levels and corresponding effort levels, by gear type and species, which could be sustained in the FSM EEZ for the near future. A total harvest of 193,000 metric tons (mt) was proposed as being biologically sustainable for the FSM tuna fishery (purse seine 145,000 mt; longline 16,000 mt; pole-and-line 32,000 mt).

Since the time of this study, the FSM tuna fishery has undergone some dynamic changes in the composition of the foreign fishing fleets operating in the EEZ and in the magnitude and distribution of catch amongst these fleets. During the calendar year 1993, a total of 173,082 mt of the principal market species of tuna and billfishes were harvested from the FSM EEZ (purse seine 149,881 mt; longline 16,628 mt; pole-and-line 6,573 mt). The majority of the catch was taken by the primary distant water fishing fleets of Japan, USA, Taiwan, China and Korea, with a combined licensed capacity exceeding 600 vessels. This figure must be regarded as a conservative estimate of total catch given the regionally recognized under-reporting and non-reporting of catch by the Taiwanese and Korean purse seine fleets (Lawson, 1992). It should be noted that there has been substantial improvement in the catch reporting requirements by the Taiwanese and Korean fleets primarily as a result of increased pressure from the Pacific Island countries which have bilateral access agreements with these fleets (A.D. Lewis, SPC, pers. comm.). The June 1993 regional ban on high-seas transshipment of purse seine caught tuna has also resulted in improved monitoring of the foreign fleets that are now required to transship their catches from regionally designated ports. Nonetheless, given that there no doubt still exists some level of under-reporting and non-reporting by the foreign fleets, the 1993 total catch for the FSM EEZ has most likely met or exceeded the 1990 proposed harvest total of 193,000 mt.

Revenues from the pelagic tuna fisheries have been generated mainly through the licensing of foreign distant water fishing vessels. More recently, the government of the FSM has recognized the need to develop and strengthen the domestic fishing industry and as a result there has been a greater emphasis on investments towards infrastructure development and employment opportunities within the four states of the FSM. The FSM government collected in excess of US$20,000,000 in licensing fees from the primary distant water fleets for access to the FSM EEZ during 1993. Substantial economic benefits were also realized from the growing purse seine transshipment activities in the FSM port of Chuuk along with the rapidly developing, longline transshipment operations taking place in all four states of the FSM. Given the disparity in catch levels between the purse seine and longline fisheries operating in the FSM EEZ, while at the same time acknowledging the near parity of economic benefits derived from the two fisheries, there is now a greater awareness of the potential economic yield of the fisheries as a factor when considering the more publicised concerns over biomass yield.

The FSM's National Fisheries Corporation (NFC) has invested millions of dollars in the design and construction of full service longline transshipment bases. These bases, located in Chunk and Yap States, were inaugurated and put into service during the last quarter of 1994 with plans to accommodate a maximum of 100 foreign and domestic longline vessels at each base. The NEC is also nearing completion of a joint-venture agreement with the Japanese longline industry that will base a significant number of Japanese longliners in FSM ports along with providing vital assistance with air transportation of FSM fish exports to the Japanese sashimi market.

Given the current and future plans of the FSM to develop its own domestic fishing industry while at the same time maintaining the hard currency revenues derived from the licensing of foreign fishing vessels, there is concern amongst resource management personnel and fisheries policy makers that the increasing catches in the FSM EEZ may be unsustainable both in a biological and economic sense. Of equal concern is what this high level of catch and effort may mean in the way of interactions amongst the various fisheries operating in our waters. It is the desire of the FSM to arrive at an equitable and sustainable balance amongst the various fisheries operating in the zone, both in terms of maximizing benefits (revenues, employment opportunities, etc.) and in assuring that our fisheries resources are allocated on a sustainable basis. In order to achieve these objectives, we need to have conclusive scientific evidence demonstrating the nature of the fisheries interactions taking place in the FSM EEZ and the implications that such interactions have on the dynamics of the various fisheries

2. CURRENT LICENSING AGREEMENTS WITH DISTANT WATER FISHING NATIONS

The following foreign and domestic Fishing fleets are currently licensed to operate in the EEZ of the FSM (figures are approximations as some negotiations are still ongoing):

· Taiwan Purse Seine	43 vessels
· Korea Purse Seine	31 vessels
· Japan Purse Seine	32 vessels (not including 1-3 group purse seine operations).
· USA Purse Seine	42 vessels
· FSM Purse Seine	8 vessels
· Japan Pole-and-line	36 vessels
· Japan Longline	Per vessel/per trip system number varies by month, ~110 vessels
· Taiwan Longline	~75 vessels
· Mainland China Longline	~265 vessels
· FSM Longline	9 vessels (6 NFC, 2 Chunk State, 1 Pohnpei private)

3. 1993 TUNA CATCHES IN THE FSM EEZ

The total 1993 catch for the principal market species of tuna harvested in the EEZ of FSM was approximately 173,082 metric tons (mt). This represents an increase of 24% over the 1992 total of 139,915 mt. The 1993 total shows a 25% increase over the 5-year average of 138,008 mt dating from 1988-92 (see Table 1). This increase is attributed almost exclusively to higher purse seine and longline catches while pole-and-line catches have decreased markedly. The relative proportion of the FSM tuna catch by flag and by gear type are shown in Figures 1-3.

Skipjack tuna accounted for 59% (~102,000 mt) of the 1993 total with yellowfin next at 37% (~64,000 mt). Bigeye tuna harvested primarily by the longline fishery contributed an additional 4% (~7,000 mt) to the total. A small amount of bigeye tuna (~10%) is captured by the purse seine fishery and reported as yellowfin tuna in the catch records.

Table 1. Tuna catch in the FSM EEZ, by gear type, 1988-93.

Year	Catch (mt)
	Purse Seine	Longline	Pole-and-Line	Total
1988	131,637	10,037	13,160	154,834
1989	92,167	13,031	20,472	125,670
1990	102,789	14,886	10,547	128,222
1991	107,713	10,278	23,410	141,401
1992	123,302	13,470	3,143	139,915
Total	557,608	61,702	70,732	690,042
5-Year Avg.	111,522	12,340	14,146	138,008
1993	149,881	16,628	6,573	173,082

Figure 1. 1993 FSM EEZ catch composition by flag. Other incudes USA (1.5%), FSM (1.5%) and China (1%).

Figure 2. 1993 FSM EEZ catch by gear. PS=purse seine; LL=longline, PL=pole-and-line.

Figure 3. Tuna catches in the FSM EEZ, by gear type, 1988-93.

3.1 Purse Seine Fishery

The majority of the FSM tuna catch for 1993, roughly 88%, was taken by foreign and domestic purse seine vessels licensed to operate in the FSM EEZ. The Japanese purse seine fleet, accounted for 89,710 mt or 62% of the total purse seine harvest and 52% of the entire FSM harvest (Table 2). The previous 5-year catch average (1988- 1992) for the Japanese fleet was 87,180 mt.

Table 2. Japan purse seine catch and effort in FSM EEZ, 1991-94.

Year	Days Fished	Total Catch (mt)	Avg. CPUE (mt/day)
1991	3,706	90,509	24.4
1992	2,742	82,919	30.2
1993	4,403	89,710	20.3
1994	1,615	40,313	24.9

Source: vessel catch reports.

Table 3. Taiwan purse seine catch and effort in FSM EEZ, 1991-94.

Year	Days Fished	Total Catch (mt)	Avg. CPUE (mt/day)
1991	0	0	n/a
1992	2,059	22,008	10.6
1993	2,494	36,358	14.7
1994	689	11,690	17.0

Source: vessel catch reports.

Table 4. Korea purse seine catch and effort in FSM EEZ, 1991-94.

Year	Days Fished	Total Catch (mt)	Avg. CPUE (mt/day)
1991	0	0	n/a
1992	0	0	n/a
1993	1,756	21,549	12.3
1994	594	11,185	18.8

Source: vessel catch reports.

It should be noted that commencing June of 1993, a region-wide ban on the high-seas transshipment of purse seine caught tuna was instituted which may have resulted in lowering the overall 1993 regional catches by the Taiwanese and Korean purse seine fleets. This reduction in catch was a consequence of increased turn around times for unloading the tuna catches in port versus the previous high-seas transshipment operations. The high-seas transshipment ban did not have a major impact on the Japanese and US purse seine catches as these fleets have not, as a rule, transshipped their catches on the high seas in previous years.

3.2 Longline Fishery

The 1993 FSM EEZ longline catch of 16,628 mt represents a 19% increase over the 1992 harvest of 13,470 mt. The previous 5-year catch average (1988-1992) for the longline fleet was 12,340 mt. There has, however, been some dynamic changes in terms of the composition of the various foreign fleets fishing for the Japanese sashimi export market. Beginning in 1992, Taiwanese and mainland Chinese longliners began using FSM ports as transshipment bases to export their catches to Japan via Guam and/or Saipan.

The Japanese portion of the FSM longline catch for 1993, estimated at 10,143 mt, has shown a slight decrease over the 1992 catch of 10,480 mt (Table 5). The Japanese longline fleet, however, has increased their effort in 1993 by roughly 15% over 1992 levels giving a noticeable drop in their CPUE for the target species of yellowfin and bigeye tuna. Preliminary Japanese longline data for the 1994 calendar year demonstrates a similar CPUE for yellowfin (0.75) and bigeye (0.44) from the FSM EEZ.

Table 5. Japan longline catch and effort in FSM EEZ, 1991-93.

Year	Hooks x 100	Total Catch* (mt)	YFT CPUE (fish/100 hooks)	BET CPUE (fish/100 hooks)
1991	235,096	10,178	0.83	0.54
1992	204,372	10,561	1.00	0.55
1993	239,821	10,143	0.73	0.48

Source: vessel catch reports.
*Total catch includes all species, e.g. billfishes.

Table 6. Taiwan longline catch and effort in FSM EEZ, 1991-93.

Year	Hooks x 100	Total Catch* (mt)	YFT CPUE (fish/100 hooks)	BET CPUE (fish/100 hooks)
1991	4,668	343	0.57	0.54
1992	35,483	2,517	0.84	0.54
1993	62,252	3,011	0.42	0.50

Source: vessel catch reports.
*Total catch includes all species, e.g. billfishes.

Table 7. Mainland China longline catch and effort in FSM EEZ, 1992-93.

Year	Hooks x 100	Total Catch* (mt)	YFT CPUE (fish/100 hooks)	BET CPUE (fish/100 hooks)
1992	6,270	402	0.60	0.52
1993	71,128	3,384	0.46	0.45

Source: vessel catch reports.
*Total catch includes all species, e.g. billfishes.

The 1993 Japanese pole-and-line catch in the FSM EEZ of 6,573 mt represents a more than 100% increase over the 1992 catch total of 3,143 mt (Table 8). The previous 5-year catch average for the Japanese pole-and-line fleet in the FSM EEZ was 14,146 mt. The main reason for the declining trend in catch has been a reduction in the size of the pole-and-line fleet and the corresponding decrease in fishing effort. For example, the peak catch during the previous 5-year period was 23,408 mt harvested in 1991. A total of 2,599 fishing days were logged by the Japanese pole-and-line fleet during 1991 versus 815 fishing days for 1993.

Table 8. Japan pole-and-line catch and effort in FSM EEZ, 1991-94.

Year	Days Fished	Total Catch (mt)	Avg. CPUE (mt/day)
1991	2,599	23,410	9.0
1992	557	3,143	5.6
1993	815	6,573	7.6
1994	664	4,598	6.3

Source: vessel catch reports.

4.1 Tuna Fisheries Interaction and Status of Stocks in the FSM EEZ

With catch and effort in the FSM EEZ approaching, and possibly exceeding, the proposed 1990 annual harvest levels (see Table 9), the MMA has commissioned a study to revisit the question of the current level of exploitation on the tuna stocks in the FSM EEZ with particular interest directed towards quantifying the magnitude and scope of potential fisheries interactions. As with the 1990 study, the annual harvest levels, by gear type and species, will be recommended for management purposes. The study is currently in progress with completion and final report slated for the first quarter of 1995. Funding for the study has been provided in part by the Oceanic Fisheries Program of the South Pacific Commission with additional contributions from the FSM national government.

The MMA has requested and received cooperation from the governments of Palau, Marshall Islands and Papua New Guinea in providing access to catch and effort data from their respective EEZs for the purposes of this study. In addition, the government of Japan has provided historic high seas catch and effort data upon request for use in the study. Since the 1990 study, there have been noticeable improvements in the collection of size-frequency and species composition data from the MMA port sampling and observer programs which should enhance the present study.

Table 9. Proposed and actual 1993 harvest and effort levels for FSM tuna fisheries.

Gear	Proposed Harvest Level (mt)	1993 Catch (mt)	Status	Proposed Effort Level	Actual 1993 Effort	Status
Purse seine	145000	149881	exceeded by 3%	5800 to 8400 days	9100 days	exceeded upper range by 8%
Longline	16000	16628	exceeded by 3%	36 to 44 million hooks	37.3 million hooks	within lower range
Pole-and-line	32000	6573	under by 79%	5600 days	815 days	under by 84%
Total	193000	173082

Source: Sibert, 1990 a; 1990b.

The Micronesian Maritime Authority has played a vital role in the design and implementation of a regional study aimed at investigating the reproductive biology of yellowfin tuna, Thunnus albacares, from the western and central Pacific. The funding for this project is being provided by the University of Hawaii, School of Ocean and Earth Sciences (SOEST), under grant money received from the US Department of Commerce. The following investigators are involved in the research:

Coordinator:	David Itano, Fisheries Biologist, University of Hawaii, JIMAR
Collaborators:	John Hampton, Principal Fisheries Scientist, South Pacific Commission
	Craig Heberer, Tuna Biologist, Micronesian Maritime Authority
	Sachiko Tsuji, Fisheries Biologist, National Research Institute of Far Seas Fisheries Japan
	Richard Shomura, Fisheries Biologist, University of Hawaii, Hawaii Institute of Marine Biology (HIMB), Hawaii
	Gordon Grau, Professor of Zoology, University of Hawaii, HIMB, Hawaii

Objectives of the research:

· assess the role of reproductive behaviour in determining cycles of vulnerability of yellowfin tuna to surface and subsurface gear;

· estimate the size at first maturity, spawning frequency and fecundity of yellowfin tuna for different areas and seasons in the western Pacific and Hawaiian waters;

· define major spawning areas and seasons for yellowfin tuna in these areas, and

· estimate the sex ratio of yellowfin tuna as a function of size.

The reproductive parameters of the sampled fish will be determined through microscopic examination of prepared slides. At this point, over 1,500 samples have been stained, sectioned and mounted on microscopic slides. Over 1,000 of these slides have been examined and analysed. Preliminary results are forthcoming.

5. FISHERIES DEVELOPMENT PROJECT IN THE FSM

5.1 The National Fisheries Corporation (NFC)

One of the main developmental thrusts of the NFC is to create a domestic fishing fleet whereby Micronesian citizens can become involved in the fishing industry through employment and/or investment opportunities. To this end, the NFC owns and operates a small fleet of longline vessels based in the various FSM ports targeting the Japanese sashimi grade tuna export market. The vessels are crewed mainly by Micronesian citizens, including the skilled positions such as captains and chief engineers.

Currently, the NFC has six longline vessels based at the Chuuk longline transshipment base. Future plans include the acquisition of four new longline vessels early in 1995 (three for Kosrae Sea Ventures) followed by a fleet expansion program that aims to incorporate at least two new vessels per year into the fishery. NFC continues to play an important role in manpower development for the domestic fishing industry with assistance from the Japanese OFCF training program at the Micronesian Maritime and Fisheries Academy in Yap State.

Completion of the joint venture NFC/Chunk State Longline Transshipment Base (Chuuk Fresh Tuna, Inc.) will have a substantial positive impact in terms of increased employment opportunities as well as increased revenues for the FSM States. This base will be able to handle 100-120 longline vessels with the intent to supply these vessels with all of the necessary elements of the longline operation. Some of these elements include ice, fuel, oil, water, bait, and stevedoring services for the transshipment operations.

A similar joint venture NFC/Yap State Longline Transshipment Base (Yap Fresh Tuna, Inc.) became operational at the end of August 1995 and will also handle from 100-120 vessels.

5.2 Pohnpei Fisheries Corporation (PPC)

The PFC was established in November 1992 as part of a US$22.5 million loan package that includes a modern fish processing facility and assorted infrastructure development projects aimed at creating a domestic value-added fish processing industry in the State of Pohnpei. The PFC is a public corporation owned entirely by the Pohnpei state government, and must be privatised within three years in accordance with a privatization plan approved by the Legislature. The Fish Processing Facility was constructed and initially managed by the Danish firm Sabroe. The operational plan includes the production of the following products:

· fresh loins from yellowfin and bigeye tuna and other pelagic species such as marlin, swordfish and shark

· frozen loins and steaks

· smoked products

· pre-cooked/prepared products

· block frozen fillets from tuna and skipjack

5.3 Micronesian Longline Fishing Company (MLFC)

The government of the FSM is negotiating a US$6.5 million loan from the Asian Development Bank to create a private sector longline fishing company--the MLFC. The intent is to procure seven new longline fishing vessels to be operated by all Micronesian crews with shares in the company available only to Micronesian citizens. One of the vessels will be used as a training vessel for the Micronesian Maritime and Fisheries Academy program (MMFA). The MMFA program will be expected to provide the training for Micronesian citizens in all aspects of the longline operation. Construction and procurement of the vessels will be put out to international competitive bid. The loan package includes US$500,000 for technical assistance in the areas of conservation and resource management.

5.4 Yap Fishing Corporation

The Yap Fishing Corporation has continued to operate profitably in the western Pacific purse seine tuna fishery. The company currently has five seiners fishing in the region which provide employment opportunities for a large number of Micronesian citizens.

5.5 The Micronesian Maritime and Fisheries Academy (MMFA)

With the substantially increased level of domestic fisheries development the MMFA will continue to play a vital role in success of the domestic industry in the FSM. The MMFA is currently funded by the FSM government and the State of Yap with the Pacific Missionary Aviation Corporation handling the day to day management of the Academy. At the moment the Japanese Overseas Fisheries Cooperative Foundation (OFCF) has provided some fishing instructors to the MMFA to provide the students with intensive hands-on training in the all aspects of longline and purse seine fishing operations. The OFCF has also donated a substantial inventory of fishing equipment to the MMFA for use in the training programs.

6. REFERENCES CITED

Lawson, T. 1992. Working Paper presented at the 1992 SPC Standing Committee on Tuna and Billfish, August 1992, Honolulu, Hawaii.

Sibert, J. 1990a. Status of Stocks and Harvest Targets for Tuna Fisheries in Federated States of Micronesia. Contract RAS/89/039. FAO, Rome.

Sibert, J. 1990b. Interaction between Tuna Fisheries in the Federated States of Micronesia. Contract RAS/89/039. FAO, Rome.