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Country review: Madagascar[386]


Mathieu Soumy
FAO Consultant, Fishery Policy and Planning Division, Fisheries Department
August 2004

INTRODUCTION

Situated to the East of Africa in the Indian Ocean, Madagascar is classified among the largest islands in the world with 5 600 km of coastline.

The western coastline benefits from a large continental plateau covering, up to the 200 m isobath, an area of 117 000 km2. The Malagasy Exclusive Economic Zone covers an area of 1 140 000 km2 which represents twice the surface of the island.

The maritime fisheries sector is structured in three main segments: traditional fisheries, artisanal fisheries and industrial fisheries. Traditional fishing is done on foot or in a dugout canoe while artisanal fishing is characterized by the use of motorized boats using engines not over 50 horsepower. The industrial fishing fleet is made up of boats powered by engines over 50 hp.

Traditional fishing has always been practised in Madagascar and industrial fishing developed from 1963, with the advent of shrimp fishing. Production has been on the increase ever since and the sector, traditionally important as a food supply for the population, has rapidly become of strategic importance to the country’s economy.

Fifty-five thousand traditional fishermen produce 95 percent of fish for the local market and they contribute to a significant enrichment of the population’s diet as they are the source of 3.9 kg/inhabitant/year out of the six kg/inhabitant/year available[387]. These fishermen can use a variety of non motorised vessels, using sails or oars. Nonetheless, traditional fishing is mostly an activity practised on foot by fishermen having a very limited range of action. Fishing techniques are varied: with various nets, canoes, baited boxes, tulles gathered by hand and harpooning with or without diving.

In parallel to this, sea fishing offers interesting opportunities for the production of lucrative export resources and the industrial and artisanal fleet’s catch is destined for the export market. In 2001, the production of fish and aquaculture was the main source of foreign currency for the national economy, bringing in US$160 million (3.5 percent of GDP).

Even though fishing has been regulated since the 1920’s, management policies only appeared in 1973 with the issue of licenses for fishing vessels. Actors from the fish production sector have for a long time been aware of the importance of the rational management of natural resources and development plans are now well documented and are drafted after consultation with experts and sector representatives.

The new data collected to write this review is mainly taken from the Malagasy government websites, Malagasy or international organizations, of technical documents of the FAO, of the work of seminars or discussions with the main actors of Malagasy fishing management.

POLITICAL FRAMEWORK

Ordinance 93022 of 4 May 1993 concerning the regulation of fishing and aquaculture establishes the basics of the fishing management process in the second chapter entitled «fisheries management». It stipulates that the fisheries and aquaculture minister must prepare and keep up-to-date the fisheries management and fish stock conservation plans[388]. In this manner, the aims of fishing management plans are defined in the fishing and aquaculture Directing Plan. They are concerned mainly with the rise of export revenue, the satisfaction of the population’s food needs, the improvement of the fishermen’s revenue, living conditions and job creation.

Moreover, the Malagasy constitution insists on the necessity of a rational exploitation of fish resources in order to preserve them for future generations. On the one hand, the Directing Plan must be fundamentally based on the development and application of good fish and aquaculture resource production management plans and on the other, the development of under-exploited and potential resources. The Directing Plans are put into action through the drafting of Decrees fixing, for example, the number of licences issued or the level of taxation of a particular fishery.

LEGAL FRAMEWORK

The Ministry of Agriculture and Fisheries (MAEP) is responsible for the management of fishing through the intermediary of the Direction of Fishing and Fish resources (Grid Annex 12. in the Organizational chart of the MAEP). The enforcement and surveillance of the measures relative to the management of different fisheries are delegated to the Centre for Surveillance of Fisheries which stays under the authority of the MAEP.

Organizational chart of the MAEP

At the heart of the Regional Directions for Rural Development, the Regional Services for Fishing and Fish Production are in charge of the application and of consulting actors in each fishery at a regional level. They collaborate at a local level with the consultative councils for fishing and agriculture of each Faritany[389]. Its different agencies co-ordinate the application of fishing legislation and centralize the information concerning fisheries management, each at their own level of jurisdiction.

In the case of shrimp farming, the Groupement des Aquaculteurs et Pêcheurs de Crevettes de Madagascar (GAPCM) shares the responsibility for management of the fishery by a process of self management of its members. This professional group also has an important consultative role as it participated in the establishment of an Economic Observatory of the shrimp sector, an independent organization in charge of analyzing the performance of the industry with a view to establish recommendations for the drafting of management plans. The GAPCM has an enabling role in the dialogue and consultation between the authorities responsible for fisheries management and the industrial and artisanal fishermen, represented in the group (See Box 1). Traditional fishermen who are not adequately represented in the group are nonetheless invited to participate in fisheries management seminars organized jointly by the MAEP and the GAPCM with an active participation of the FAO.

The recommendations of the Economic Observatory are taken into account for the drafting of the Directing Plans by the MAEP. The performance indicators it evaluates are those concerning the revaluation of fish production, contributions to the State revenue, participation in the local supply of fish, collaboration with the traditional sector and contribution to the job market. The Economic Observatory is not the only organization to have a consultative role in the drafting of the Directing Plans. A Committee of wise men is constituted of three independent international experts and is financed by FED[390]. Its role is to analyze the shrimp sector in order to give recommendations to the Malagasy government, the GAPCM, the World Bank and the EU.

The management process is also influenced by the establishment of protected marine zones, in collaboration with the National Office for the Environment and different organizations acting in the environmental sphere, like the WCS[391] and the WWF[392]. At a local level, these zones can have an important impact on traditional fisheries.

STATE OF THE FISHERIES

Fish production

The traditional fishing sector is responsible for the most important volume of catch with 53 percent of the total marine fish catch in 2002.

The other important volumes of catch are the product of the industrial shrimp and deep water fish industry (8.8 percent and four percent of the total volume disembarked in 2002). This industry is in a period of expansion as it was only authorized in 2001, and the catch was already of 4 157 tonnes in 2002. It contributes to the total increase of marine production between 2000 and 2002.

Tuna production is at 10 000 tonnes per year. Only foreign vessels, for the most part from the EU, participate in this activity and catch volume is defined in the framework of international agreements.

Industrial shrimp fishing production has stabilized around 8 500 tonnes a year for the last ten years, even if it was particularly high in 2002. Fish production issued from industrial fishing are the bycatch of shrimp fishing and are destined entirely to the local market (3 175 tonnes in 2002) in order to contribute to the satisfaction of the local food needs of the population.

BOX 1
Use of professional groups in the participative management of Malagasy shrimp farming

Levels of production are stabilized at approximately 8 000 tonnes a year for industrial fishing in the last ten years, and at approximately 500 tonnes a year for artisanal fishing in the last five years.

This success is possible due to the fact that professionals of the industrial and artisanal sector have constituted a professional association in 1996 following the workshop on shrimp farming management in 1996, the Group for Aqua-cultivators and Shrimp Farmers of Madagascar. The objective of this group is the facilitation of dialogue and consultation between its members, to be a representative partner for the profession to the government and international organizations and to draft propositions concerning the establishment of a rational management policy for shrimp farming. The GAPCM has allowed the better co-ordination of management measures by involving the sector’s professionals in the drafting process of management plans, which has made the process more transparent, therefore easing the fishermen’s acceptance of measures taken.

Conscious of the importance of management based on scientific evaluations, the MPRH4 and the GAPCM, with the participation of the IRD5 and the AFD6, have put in place the National Programme for Shrimp Research in 1997. The PNRC is composed of three tiers: biology, socio-economics and anthropology. It has contributed to a better understanding of shrimp ecology (tagging campaigns) and has given information on the traditional fishing sector.

Collaboration between the MPRH and the GAPCM has enabled the establishment of the Economic Observatory in 2001, has founded the Economic Observatory in 2001, an independent organization in charge of the follow-up and the analysis of the sector’s performance. It is the GAPCM that defined the organization, the mode of action and the performance analysis system of the Economic Observatory.

The most noteworthy management measure taken in the last few years has been the freeze in the capacity of the industrial and artisanal fleet in 1999: the number of licenses and the reference engine power have been limited to 1999 levels for two years. This measure followed an evaluation of shrimp stock levels and of the level of exploitation of the industry which was judged to be at its maximal level in 1998. This measure was reconvened in 2000 and is still applied in 2004. Taxes on its licences are determined for each season on the basis of an evaluation of available stock and an analysis of the fishery’s performance.

Other management tools are presently being studied (Chaboud, 2003), notably a reduction in the time span of the fishing season, a reduction in the length of industrial fishing nets, reductions in the level of activity of the industrial fleet and an increase in the size of the grid cells of industrial fishing nets. Chaboud (2003) seems to believe that a reduction of 12 percent in the number of industrial fishing days would be very positive as it would have the following effects: +104 percent for Net Exploitation Revenue (NER), +26 percent for State revenue and +17 percent net foreign currency gains. Still following Chaboud’s model, a reduction of the industrial fleet’s activity level by a day a week would also increase the private sector’s gains (NER) of 28.9 percent thanks to a better valuation of shrimp (+1.3 percent) as would an increase in the size of boat net grid cells (increases due to a better valuation of shrimp (+2.65 percent) are of 26.7 percent for the NER and of 14.4 percent for economic rent). Following this bio-economical simulation, the impact of these management measures would be an increase of 113 percent of NER after tax, of 26 percent of State revenue and of 20 percent of net foreign currency gains.

Moreover, industrial shrimp fishing boat owners are worried for the 2003 season. The strong world competition in aquaculture on small fish has pushed prices down in this segment (Andrianaivojaona et al., 2003)7. Actors of the industrial sector believe the non-respect of the fishing season by traditional fishermen has caused a reduction in the size of the catch and they fear negative net exploitation results for the 2003 season.

To counteract the increase in competition, the MAEP and the GAPCM want to focus on product quality and have therefore started a process of expert analysis to obtain the organic certification of Malagasy shrimp.

4 The MPRH or Ministry of Fish Resources has been integrated to MAEP in 2002 and can be considered as MAEP’s Direction of Fisheries and Fish Resources.

5 Institute of Research for Development (www.ird.fr).

6 French Agency for Development (www.afd.fr).

7 On the European market, the price of Brazilian shrimp has become very competitive (less than six Euros a kilo to import). The average price of Malagasy shrimp for import (small and medium size) is still above ten Euros a kilo in 2002, the difference in price with the Brazilian shrimp can be explained by larger sizes and a better quality. At a global level, the Urner Barry (Index taking into account the price of all size shrimp) has gone from US$7 to US$3.5 for the White and has fallen by 20 to 30 percent for the Black Tiger.

It is difficult to estimate the total value of fisheries’ production, given the heterogeneous nature of the local market. Profit margins of industrial and artisanal fishing are nonetheless available and are valued at US$59 million and US$2.39 million respectively.

In employment terms, 96 000 people work in the fishing and aquaculture sector in 2001, of which 80 000 are traditional fishermen. The level of new jobs created during the last ten years is 28 000 (MEAP, 2004).

Exports in the fish production sector

Exports of fish and aquaculture production are an important source of foreign exchange for the State, with a value of US$160 million in 2001. Marine production contributes to 77 percent of tonnage and to 74 percent of the value of these exports, shrimp fishing being the most important contributor with US$76.26 million or 45 percent of the total value of fishing and aquaculture exports.

The total value of exports is increasing each year and has reached 1 090 billion FMG (US$163 million) in 2002. It was of 402 billion FMG (US$62 million) in 1996. This increase is due to the development of shrimp farming since 1994, the production of which is entirely destined to the export market the development of aquaculture should continue in the future, projections for 2003 establishing an increase of production of 8 percent compared to 2002.

Consumption of fish products

Marine production is destined for the most part to the local market (64 percent in 2001). Data gathering in this informal sector is not dependable, given the great price variation between species, size, value added (smoking, salting, drying) and the geographical location of sale points. Nonetheless, it is certain that marine fish production, mostly traditional, is important to local market food supply, with a supply of 4 kg/year/inhabitant, total availability of fish and aquaculture produce being of 6 kg/year/inhabitant.

Evolution of fishing levels

Globally, indicators show an increase in fishing levels these last few years, even taking into account the lack of dependable data concerning traditional fishing (Tables 1-3). Even with the freeze on the number and power of vessels since 2000, fishing levels are on the increase due to the rise in the efficiency of the boats. If one considers that the industrial and artisanal production has been stable from 1998 to 2001, the catch per unit of effort (CPUE) has diminished over the same period.

TABLE 1
Evolution of the production of fishing and aquaculture 1999 - 20021

Produce (tonnes)

1999

2000

2001

2002

Industrial Fishing2

22 474

22 571

24 663

26 638

Shrimp

7 888

8 303

7 889

9 207

Fish3

2 586

4 268

4 517

3 175

Deep water Shrimp4

0

0

130

99

Deep sea Fish7

0

0

2 127

4 157

Tuna5

12 000

10 000

10 000

10 000

Artisanal Fishing6

630

587

620

667

Shrimp

480

412

437

467

Fish 6

150

175

183

200

Traditional Fishing7

62 974

64 709

65 507

74 013

Shrimp

2 139

3 412

3 450

3 450

Crabs

868

1 030

1 347

1 428

Lobster

338

329

359

402

Trepangs

512

838

851

708

Fish8

55 000

55 000

55 000

55 000

Other

4 117

4 100

4 500

13 000

Sub-total of maritime fishing catch

86 078

87 867

90 790

101 318

Algae (traditional production)

1 933

5 792

5 045

2 909

Sub-total of maritime fishing catch
(inclusive of algae production)

88 011

93 659

95 835

104 227

Marine aquaculture (Shrimp farming)

3 486

4 800

5 399

5 566

Continental fishing

30 000

30 000

30 000

30 000

Fish farming

560

800

850

900

Rice and fish prod.

1 000

1 500

1 500

1 500

Total Production

123 057

130 759

133 584

142 193

1 MAEP statistics (www.maep.gov.mg).

2 Maritime industrial Fishing is defined as being practised by vessels with engines over 50 hp. For shrimp fishing, maximum allowed power is 500 hp.

3 Estimates of the proportion of different species offloaded as by-takes of industrial and artisanal shrimp fishing (Faritany de Mahajanga):

(Source: Andriamizara, 1998).

4 Deep water fishing concerns the waters in Malagasy jurisdiction at a depth of 200 m and over; the main species of deep water shrimp are: Aristaeomorphes foliacea and Plesiopenaeus edwarsianus, Heterocarpus laevigatus, Aristeus varidens and the main fish form these depths are: Orange Roughy (Hoplostethus atlanticus), l’Alphonsino (Beryx splendens), the Black Cardinal (Epigonus telescopus), the Black Ruff (Schedophilus velaini), the Barrel Fish (Hyperoglyphe antarctica), the Boarfish (Pseudopentaceros richardsoni) and the Ruby fish (Plagiogeneion rubiginosus).

5 Industrial tuna fishing in the Malagasy EEZ is practised exclusively by foreign trawlers.

6 Maritime artisanal fishing is caracterized by the use of a vessel having an engine power not over 50 hp.

7 Traditional maritime fishing is practised on foot or in a canoe. The use of a single hull canoe equipped with an engine is classed in this category.

8 Carangidae, Mugilidae, Sparidae, Lutjianidae, Mullidae, Apogonidae, Rajidae family.

TABLE 2
Breakdown of exports in 2001


Exports of produce from fishing and maritime catch:


Quantity tonnes

Value (thousands of FMG)

Value (US$)

Shrimp

9 874

502 686 868

76 262 894

Fish

6 332

58 787 477

8 918 680

Crabs

521

6 982 838

1 059 370

Other1

-

217 647 220

33 019 376

Total


786 104 403

119 260 321



Aquaculture produce exports:


Shrimp

5 399

275 000 000

41 704 388

Source: MEAP, 2004.

1 The value of tinned tuna export is the main component of the «other» category, with 166 576 823 FMG or US$25 271 459. Lobster fishing is also included in the «other» category. In 2001, lobster exports were of 256.7 tonnes for a value of 19 652 600 000 FMG (US$2 981 506).

TABLE 3
Global evolution of certain indicators concerning trawler fishing (excluding deep water fishing) from 1998 to 2002



1998

1999

2000

2001

2002

Number of boats having
returned invoices1

Industrial fishing

66 (74)

67 (70)

71 (72)

67 (71)

72 (72)

Artisanal fishing

25 (36)

25 (36)

30 (36)

30 (36)

30 (36)

Number of fishing days


19 164

17 755

21 019

20 700

21 233

Fishing hours


310 285

298 880

326 322

327 374

325 289

No of trawler nets


125 671

128 756

151 618

144 934

152 099

Source: Andrianaivojaona et al., 2003.
1 The number of ships in use is in between brackets.

The state of fish stocks

Shrimp stock is the subject of particular attention on the part of MAEP and exploitation levels of this stock is considered to be at its maximum since 1998. The recent reduction of the average size of the catch in shrimp fishing indicates a slight over-exploitation.

Exploitation potential of other fish stocks have been evaluated (grid Annex 10) and these are for the most part under-exploited, apart from shark and trepang stocks, which are over-exploited and whose production has fallen in the last few years, going from 1 800 tonnes in 1997 to 708 tonnes in 2002 for trepangs. Shark production has fallen from 50 to 15 tonnes in the same period. If one considers that marine fishing production is based on ten fishing stocks (Fish[393], shrimp, deep water fish, deep water shrimp, tuna, lobster, shark, trepangs, crabs and algae), two have been over-exploited (20 percent) and represent only 0.7 percent of total production tonnage of fishing in 2002, compared to two percent in 1997.

Red lobster stocks are considered to be badly exploited as the size of the catch is decreasing since 1995 with a stable production volume of 400 tonnes a year. For some writers (Andrianjohany and Randriamalaheo, 2003), this stock is thought to be over-exploited and when one considers this point of view, the percentage of over-exploited stock reaches 30 percent of the total.

Only shrimp and lobster stocks are used fully, representing 12.6 percent of the total tonnage of marine fishing in 2002.

Studies and deep water prospecting mention a potential 2 000 tonnes of shrimp, 325 tonnes of lobster and 7 000 tonnes of crab, the potential tonnage for fish remains unknown.

MANAGEMENT ACTIVITY

The Ministry for Agriculture and Fisheries (MAEP) is responsible for the management of different fisheries. It drafts a Directing Plan whose aim is to define the guidelines necessary to the development of the fishing and aquaculture sector over a period of four years. This plan is based fundamentally on the research for and the application of a good management of fish production and the development of the exploitation of little or not realized potential resources.

For the 2004-2007 period, the economical and social objectives of the plan are the following:

BOX 2
Involvement of traditional fishermen in shrimp fishing management, a promising experience in Ambaro Bay

The participation of traditional fishermen is only possible when the latter are represented by associations or groups; the MAEP and the GAPCM encourage the creation of these associations because of the determining role played by traditional fishermen in the exploitation of shrimp resources (27.2 percent in volume of the total). Shrimp stocks being exploited to maximum levels at the moment, non respect of the fishing season by traditional fishermen causes the capture of an important number of reproductive and juvenile animals and one can notice a reduction in the size of shrimp taken during the season.

Local level initiatives are in development, in Ambaro bay for example where traditional fishermen have become conscious of their activity’s impact and have regrouped in associations and co-operatives under the encouragement of the Nosy Be Fisheries (industrial fishing firm) and Kintana (collecting business). These associations and co-operatives meet every month and two exploitation initiatives have been taken:

  • Traditional fishermen have agreed to respect the closing dates of 2002-2003 and the Nosy Be Fisheries have supplied the co-operatives with rice during that period. Repayment was delayed until the next fishing season.

  • The pôtô1 were forbidden and the size of the grid cells of the kaokobé was increased due to an important number of small animals being caught.

In a world context of strong competition for little fish coming from small calibre aquaculture, fishermen have difficulties selling their produce at a satisfying price. Revenue loss from a diminution of the catch of small calibre fish is therefore minimal for traditional fishermen.

Such measures are beneficial, limiting the take of small juveniles and revaluing resources by increasing the average size of the take of the fisheries over the fishing season.

1 Engin de pêche traditionnel.

Nonetheless, the management plan has little impact on traditional fishing, except for some local initiatives involving shrimp fishermen (Box 2: Involvement of traditional fishermen in shrimp fishing management, a promising experience in Ambaro Bay), and management measures often only apply to artisanal and industrial fisheries.

Measures such as the obligation for industrial shrimp fishermen to disembark a minimum of 0.5 kg of fish for every one kg of shrimp can nonetheless contribute to the improvement of living conditions for traditional fishermen.

Even though all fishing is regulated in Madagascar, only shrimp, tuna[394], lobster, crab, olothurians and algae fishing are covered by a specific plan. In this manner, in 2002, 30 percent[395] of the maritime catch was managed following formal and documented plans.

This proportion has not increased in the last ten years, although the traditional sector is increasingly involved in management, be it through consultation or in an executive role. So as to improve this dialogue between traditional and industrial fishery actors, a feasibility study in 2000 and an execution study in 2003 were put in place in order to establish Concerted Management Zones.

The state of fish stocks is regularly evaluated by the DPRH. Shrimp stock exploitation is monitored by the shrimp Economic Observatory, co-financed by the AFD[396], the GAPCM and the FDHA[397]. This monitoring is specific, taking into account the socioeconomic importance of this activity and the maximal level of present stock exploitation.

Stock evaluation influences decisions taken by MAEP in the fisheries management process, defined in order 93 022 but manager’s recommendations are treated differently depending on the economic importance of the fishing concerned.

For stock whose exploitation is at a maximum (shrimp and lobster stocks) and which are important as the country’s main foreign currency source, management measures are taken on a scientific basis. For example, from 1996 the results of stock evaluation (1996, 1998) have shown that the fishing effort was at its maximum (all sectors) for shrimp fishing. In 1998, during a workshop on shrimp fishing under the responsibility of the MPRH and organized in the framework of the Sectorial Fishing Programme of the FAO, the GAPCM proposed to freeze the fishing effort. The MPRH then limited the number of licenses to 1998 levels for duration of two years (order 4982/99). In 2000, this freeze was maintained at 36 licenses for artisanal fishing and 75 licenses for industrial fishing, based on 1999 references (Decree 2000-415). This measure was not accompanied by supplementary measures, such as restrictions in the volume of the catch and industrial companies compensated their diminishing returns by increasing the fishing effort to maintain production volume.

Over-exploited trepang and shark stocks, whose production in tonnage and export value are less important than shrimp have not been the focus of specific management measures to reduce or counteract this over-exploitation.

For under-exploited stock, the 2004-2007 Directing Plan for fishing and aquaculture foresees production increases of 1 000 tonnes a year for deep water fish and crab. For the latter, the MAEP estimates the exploitable potential to be 15 times the present production. Moreover, deep water crustacean and cephalopod fishing offer interesting development possibilities. The Directing plan put forward government initiatives to develop these fisheries but these are still awaiting financing.

Management provisions for traditional fishing

Traditional fisheries are not the object of important management measures. They are regulated like individual fishing, with a ban on the use of toxic substances, explosives and electrical devices to stun the fish as well as any equipment to prolong a dive longer than one using only breath. Moreover, in order to collect the produce of traditional fishing, collecting firms must seek the authorization of the Faritany Executive Committee President[398].

Lobster, crab, olothurian and algae fisheries are managed following different processes. An authorization from the Faritanu Executive President is necessary for the creation or the exploitation of a fishing enterprise, or the sale and collection of its product. The firm is obliged to technically assist fishermen in his action zone and help them purchase materials and fishing vessels[399]. He must also communicate on a monthly basis with the local fishing administration to provide fishing, collection and sale statistics.

Moreover olothurian and lobster fisheries are submitted to restrictions on the size of the catch (minimum of 11 cm fresh and 8 cm dry for olothurians and 20 cm for lobster[400]) but the restrictions concerning lobster are not enforced (Manolisoa and Sambo, 2003). Lobster fishing is also banned each year from the 1st of January to the 31st of March (Manolisoa and Sambo, 2003)[401].

A workshop organized jointly with the FAO in 2003 had for aim the conception of a sustainable exploitation system of lobster fishing. Different dates for closing time and a reduction in the minimum size of the catch (a traditional fishermen’s suggestion) were studied in the context of this workshop. Management of this type of fishing is a priority for MAEP and alternative management tools are being looked at, such as the development of mussel culture, the construction of collective holding pens, researching new equipment, new bait or the creation of a national database.

All these types of fishing are forbidden in natural parks, in this case the 117 km2 of marine parks in Madagascar.

Management mechanisms for artisanal and industrial fishing

Shrimp production is by far the most important industrial and artisanal fishing production, in tonnage or value. It is the first source of revenue in foreign exchange for the fishing and aquaculture but also for the national economy with a total of 161 million dollars in 2001, maritime fishing contributing to 76 percent of this revenue.

Practised since 1967, industrial shrimp fishing has constantly been the object of studies by the Fisheries Ministry and international organizations (FAO, World Bank, AFD[402], IRD[403], and EU). Formal and documented management plans have been put in place in the last ten years. Management of the fisheries is well established and is based on a system of licences, fixed since 1999 and defined in zones, of tax on these licences and a period during which fishing is closed every year. The Grouping of Aqua-cultivators and Shrimp fishermen of Madagascar participates actively to the management of their industry.

In order to contribute to the local market, the MPRH has decided in 1998 to impose a catch for the local market of 0.5 kg of fish for each kg of shrimp retrieved[404]. This measure was taken due to the fact that a lot of fish was rejected by the industrial shrimp producers and that the industrial fish production was initially destined entirely to the export market. Even though there are no stipulations stopping the export of such fish, the latter are often small fish of little value not suitable for the export market.

Industrial shrimp fishing is associated with high levels of discard bycatch[405] as non-target species use up space in the boats which could be used for high value shrimp (Andrianaivojaona et al., 2003). Conservation of the bycatch calls for extra effort to be put in selection, transport, off-load and distribution. By taking up valuable space, bycatch also increases fuel costs. Nonetheless, the measures taken have been beneficial to the local population and have had relatively little impact on profitability in this sector, which remains the source of important value added in 2002.

Moreover, offloading fish allows for the compensation of small shrimp catches during the off season or in areas where the profitability margin is smaller. For example, on the East coast, the bycatch has allowed some firms to obtain positive net exploitation results.

Deep water fishing has only been authorized since 2001. Little information on this type of fishing is available, other than it is a sector in full expansion as off-loading represented 4 157 tonnes in 2002.

Deep water fishing is submitted to a regime of licences and tax. Fishing zones are regulated (two miles on the West coast and eight miles in the East), smallest grid cell size must be at least 45 mm wide and ship-owners have to provide the Fishing Ministry with statistics[406].

In addition, the surveillance system has been developed since 2002 thanks to a satellite system and a Fishing Surveillance Centre (CSP)[407]. All artisanal and industrial fishing vessels are fitted with the Inmarsat C global positioning system and must transmit their location to the CSP every hour (24 positions daily). CSP qualified observers, paid by the ship owners are working on each boat.

COSTS AND REVENUES OF FISHING MANAGEMENT

State revenue is taken from the following:

For industrial shrimp fishing, social contributions and taxes on licences have increased in value by 85 percent, from 22.7 billion FMG (US$3 391 603) in 1999 to 42 billion FMG (US$7 115 026) in 2001, profits for the industrial fishing sector having progressed by 30 percent over the same period.

The artisanal shrimp fishing sector is in a more delicate economic situation and State revenue from that sector is limited to nine percent of total production.

Approximately 20 percent of this taxation is transferred to the Aquaculture and Fishing Resource Development Fund (FDHA) which was created to allow the DPRH to help and promote the aquaculture and fisheries sector. The main domains of intervention of the FDHA are:

Money from the fishing sector not transferred to the FDHA, that is 80 percent of it, is destined to the treasury. This money also has consequences for the fishing sector as MAEP’s running costs are covered by the treasury.

IMPLEMENTATION OF GLOBAL FISHING MANDATES AND INITIATIVES

Madagascar has adhered to international fishing management conventions, most notably the United Nations Convention on the Law of the Sea (UNCLOS), the Nairobi Convention on the Protection, Management and the Revaluing of the Marine Environment and the Coastal Regions of East Africa and has ratified the Agreement for the promotion of the respect of international management and conservation measures for fishing vessels on the high seas and the Code for Responsible Fishing (FAO 1995).

The United Nations Convention on the Law of the Sea for the implementation of the Dispositions of the Convention relative to the conservation and management of overlapping fish stock and migrating fish populations has not yet been ratified.

The Malagasy State has integrated some of the dispositions of these conventions to its legislation, like the setting up of a satellite surveillance system for boats in order to fight against illegal fishing or a capacity management programme for the artisanal and industrial shrimp fleet. Management policies which have for aim the rationalization of shrimp resources are in accord with the recommendations of the code for responsible fishing.

Moreover, the code for responsible fishing is to be developed to integrate the accidental capture of fishing birds in 2005.

A new decree (2003-1101) was published in November 2003. This modifies some dispositions regulating trawler fishing in Malagasy territorial waters and obliges fishing companies to install a Bycatch Reduction Device (BRD) as well as a Turtle Excluder Device (TED).

PARTICIPATION IN REGIONAL FISHERY BODIES

The Malagasy State is a member of and participates actively in the Indian Ocean Tuna Commission (IOTC), to the Southwest Indian Ocean Fisheries Commission (SWIOFC), to the Western Indian Ocean Tuna Organization (WIOTO) and in the Indian Ocean Commission (COI).

SUMMARY AND CONCLUSIONS

Madagascar is one of the world’s largest islands, with over 5 000 km of coastline and 16 million inhabitants. It is situated in the most western part of the Indian Ocean and its Exclusive Economic Zone includes a vast continental plateau.

Fish resource production are one of the main sources of foreign exchange, amounting to US$120 million (2.66 percent of GDP) and they contribute very significantly to the population’s food supply.

Maritime fisheries are structured in three main segments:

In terms of volume, the most important fishing is the product of the traditional sector, with a production of 55 000 tonnes a year, or 53 percent of the total Malagasy marine catch. Destined to the local market, the produce of this activity constitutes the main part of the 3.9 kg/an/inhabitant of fishing produce available to the population from maritime fishing.

Maritime shrimp fishing is the second largest in terms of weight, but constitutes the most important source of foreign exchange for this sector, amounting to US$76.26 million in 2001. 70 percent of production is from industrial fishing and 26 percent from traditional fishing.

Foreign vessels account for an annual production of 10 000 tonnes of tuna, fished in the Malagasy EEZ in the framework of international agreements, mostly with the EU.

These three fisheries have had a relatively stable production capacity for the last ten years, but the present exploitation level for shrimp fishing does not seem durable in view of the fact that CPUE has diminished. Moreover, overexploitation of trepang and shark stocks has wiped out these resources and the present level of lobster stocks is not sustainable.

The growing importance of the contribution of the fishing sector to the Malagasy economy has led the government to look at fishing management for a number of years now. Sector actors have collaborated actively with international and regional organizations in order to manage fishing resources sustainably.

Stabilization of shrimp production volume, the setting up of an effective surveillance system, the inclusion of traditional fishermen in the consulting process and the conception of a sustainable management model for lobster fishing bode well for the rational management of Malagasy fisheries.

Even though traditional fisheries are difficult to manage, taking into account access to fishing villages and the fact that the latter still operate informally, the shrimp sector is the object of formal and documented plans. The recent evolution of management measures tends to improve the involvement of the traditional sector in management plans, encouraging them to avoid taking juvenile and reproductive fish during the off-season. These measures are based on a more active consultation of this segment in the management process, mainly by the establishment of Concerted Management Zones. As for shrimp fishing, an initiative to collect information concerning traditional fishing would allow for a better understanding of this sector.

Where industrial fishing is concerned, the fishing effort of the fleet has not ceased to increase, even in the face of a freeze in the number of licences issued and in the power of the fleet to 1998 levels. Complementary management tools should be put in place to diminish the pressure on stocks, such as the shortening of the season, or a reduction of the level of activity. These measures seem efficient due to the fact that world market prices for large calibre shrimp have been less affected by an increase in international supply than prices for small calibre shrimp.

As for lobster fishing, numerous recommendations have been made during the TCP/MAG/170 workshop «Conception of a sustainable exploitation system for lobster fisheries» and the Malagasy government must now decide which tools to adopt. Suggestions bear notably on a change of date for the season, the construction of collective holding pens, development of mussel cultivation, creation of a national data base or the training of fishermen and salesmen in post capture health and safety.

REFERENCES

Andriamizara, C., 1998. Le poisson d’accompagnement dans le faritany de Mahajanga. Programme Sectoriel Pêche. PNUD/FAO.MAG/97/002-DT/10/98: 5p.

Andrianaivojaona, C., Coûteaux, B., Kasprzyk, Z. and Ranaivoson, E. (eds.). 2003. Aménagement de la pêcherie crevettière: actes de l’atelier - Antananarivo, Madagascar, 17-19 June 2003. Ed. Edition CITE, Antanarivo. 383p.

Andrianjohany, S. and Randriamalaheo, H. 2003. La problématique de la pêche langoustière à Fort Dauphin, Atelier TCP/MAG/170 «Conception d’un système d’exploitation durable de la pêcherie langoustière».

Chaboud, C. 2003. Développements récents du modèle de simulation bio- économique de la pêcherie crevettière malgache et premiers résultats d’une application sur données réelles. Analyse de scénarios de gestion de la pêcherie. Aménagement de la pêcherie crevettière: actes de l’atelier - Antananarivo, Madagascar, 17-19 June 2003. Ed. Andrianaivojaona, Coûteaux, Kasprzyk, Ranaivoson. Edition CITE, Antanarivo. p. 201-230.

FAO Legal Department. (www.faolex.fao.org/faolex_fra/index.htm).

Goodlad, J., Jarrett, A. and Wilson, J. 2003. Rapport du Comité des Sages à l’attention du Groupement des Aquaculteurs et des Pêcheurs de Crevettes de Madagascar, du Gouvernement de Madagascar, de la Banque Mondiale, l’Union Européenne et des ambassades de la France, du Japon, de l’Allemagne. Unpublished. 2003. 40p.

Groupement des Aquaculteurs et des Pêcheurs de Crevettes de Madagascar. (www.madagascar-contacts.com/gapcm).

Informations sur l’aménagement des pêches dans la république de Madagascar. FAO. November 1999. (www.fao.org/fi/fcp/fr/MDG/body.htm).

Institut National de la Statistique. (www.instat.mg).

Kourkouliotis, K. and E. Ranaivoson (eds.), 1998. Aménagement de la pêche crevettière Malgache. Programme Sectoriel Pêche PNUD/FAO. MAG/97/002-DT/12/98: 340p.

Manolisoa, J. et Sambo, M. 2003. Le contexte socio-économique de la pêche langoustière: La vie des pêcheurs langoustiers du Sud, Sud-Est. Atelier TCP/MAG/170 «Conception d’un système d’exploitation durable de la pêcherie langoustière». p. 64 -65.

MEAP. 2003. Ministère de l’Agriculture, de l’Elevage et de la Pêche. Plan Directeur de la pêche et de l’aquaculture 2004-2007. Unpublished. November 2003. 26p.

Ministère de l’Agriculture, de l’Elevage et de la Pêche. (www.maep.gov.mg).

Ministère de l’Economie, des Finances et du Budget. (www.mefb.gov.mg).

Office National pour l’Environnement. (www.pnae.mg).

Profil de la pêche par pays. La république de Madagascar. FAO. November 1999. (www.fao.org/fi/fcp/fr/MDG/profile.htm).

Programme National de Recherche Crevettière. (www.madagascar-contacts.com/pnrc/).

Rafomanana, G. 2003. Contrôle et surveillance: Le contrôle et la surveillance des activités de pêche. Atelier TCP/MAG/170 «Conception d’un système d’exploitation durable de la pêcherie langoustière». p.84 -89.

Roullot, J. 1988. Le développement de la pêche aux crabes des palétuviers et des crustacés d’eau profonde à Madagascar. Projet régional pour le développement et l’aménagement des pêches dans l’océan indien sud occidental, FAO. RAF/87/008/WP/44/89/F.

World Bank. (www.worldbank.org).

APPENDIX TABLES

Current management of marine capture fisheries in Madagascar

Management
level

% of managed
fishing

% with fishing
management plan

% with published rules

Trend in the number of
managed fisheries
(increasing/decreasing/no change

National

100

30

100

increasing

Regional

100

30

100

increasing

Local

100

30

100

increasing

Summary of information for three largest fisheries (by volume) in Madagascar (2002)

Fishing
category

Fishery

Volume
thousand
tonnes

Value*
thousand
US$
(2001)

% of total
catch
volume **

% of total
catch
value **

Covered by a
management
plan? (yes/no)

# of
Participants

# of
marine
boats

Industrial

1 Shrimp

9 207

28 595 452

34.5 %

n.a.

yes

4 463

70

2 High value deep water fish

4 157

n.a.

15.6 %

n.a.

no

n.a.

n.a.

3 Shrimp fishing bycatch

3 175

493 4101

11.9 %

n.a.

yes2

4 463

70

Artisanal3

1 Traditional fishing

55 000

n.a.

71.8 %

n.a.

no

55 0004

n.a.5

2 Traditional shrimp fishing

3 450

n.a.

4.5%

n.a.

yes

55 000

8 0006

3 Traditional crab fishing

1 428

n.a.

1.8 %

n.a.

yes

1 000

n.a.

Recreational

1 n.a.








* Value in 2002 US$

** % values are based on the total for each fishing category.

n.a. = not available

1 Estimate on the 2001 catch, on the exploitation results of the main industrial fishing companies in 1997 and price indexes between 1997 and 2001.

2 In the framework of shrimp fishing management plans, some management measures are specific to the bycatch.

3 The algae production (2 909 tonnes) has not been taken into account in this chart.

4 This data is an approximation, estimates vary between 55 000 and 60 000 participants.

5 No effective canoe census, but a study made in 1989 which estimates canoe numbers at 22 000.

6 Estimates of the report of the Wise Men Committee for the GAPCM, the World Bank and the EU, 2003.

Use of fishery management tools within the three largest (by volume) fisheries of Madagascar (2002)

Fishing
category

Fishery

Restrictions

Licence/
limited
entry

Catch
restrictions

Restrictions
based on
rights

Tax

Performance
standards

Spatial

Time

Adopted

Size

Industrial

1

Yes

Yes

Yes

No

Yes

No

Yes

Yes

Yes

2

Yes

No

Yes

No

Yes

No

Yes

Yes

No

3

Yes

Yes

Yes

No

Yes

No

Yes1

Yes

No

Artisanal

1

Yes

No

Yes

No

No

No

No

No

No

2

Yes

Yes

Yes

No

No2

No

No

No

No

3

Yes

No

Yes

No

No

No

No

No

No

Recreational

1

Yes

No

No

No

No

No

No

No

No

2

Yes

No

No

No

No

No

No

No

No

3

Yes

No

No

No

No

No

No

No

No

1 Rights linked to shrimp exploitation.
2 Exploitation subject to the Faritany president’s authorization.

Costs and funding sources of fisheries management within the three largest fisheries

Fishing
category

Fishery

Do the funds cover

Management funding source

R&D

Surveillance &
Application

Daily
management

Fishing licence
rights

Licence rights of
other fisheries

Resource
rent

Industrial

1

Yes1

Yes2

No3

Yes

No

No

2

Yes

Yes

No

Yes

Yes

No

3

Yes

Yes

No

Yes

No

No

Artisanal

1

Yes

No

No

No

Yes

No

2

Yes

No

No

No

Yes

No

3

Yes

No

No

No

Yes

No

Recreational

1

n.a.

n.a.

n.a.

n.a.

n.a.

n.a.

2

n.a.

n.a.

n.a.

n.a.

n.a.

n.a.

3

n.a.

n.a.

n.a.

n.a.

n.a.

n.a.

n.a. not available.
1 Participation of international organizations (EU, AFD, World Bank, FAO).
2 The fisheries surveillance centre is financed in part by the EU.
3 Observers on board are payed by the owner.

Compliance and enforcement within the three largest fisheries

Fishing
category

Fishery

VMS

Observers on board

Random zone inspection

Routine inspection
on land

Inspections
at sea

Other
(please
specify)

Industrial

1

Yes

Yes

Yes

Yes

Yes


2

Yes

Yes

Yes

Yes

Yes


3

Yes

Yes

Yes

Yes

Yes


Artisanal

1

No

No

No

No

No


2

No

No

Yes

No

No


3

No

No

No

No

No


Recreational

1

n.a.

n.a.

n.a.

n.a.

n.a.


2

n.a.

n.a.

n.a.

n.a.

n.a.


3

n.a.

n.a.

n.a.

n.a.

n.a.


n.a. not available

Capacity management within the three largest fisheries of Madagascar

Fishing
category

Fishery

Overfishing?

Measure of the
fleet's capacity?

FPUE increasing,
constant or
decreasing

Have
capacity
reduction
programmes
been used?

If they have, please specify
the capacity reduction
programme’s objectives

Industrial

1

No

Yes

constant1

No2

Overfishing prevention

2

No

n.a.

n.a.

No


3

No

Yes

n.a.3

No


Artisanal

1

No

No

n.a.

No


2

No

No

constant

No


3

No

No

constant

No


Recreational

1

n.a.

n.a.

n.a.

n.a.


2

n.a.

n.a.

n.a.

n.a.


3

n.a.

n.a.

n.a.

n.a.


n.a. not available

1 A study of biological and economic data show that Malagasy shrimp fishing is at its maximum level of exploitation, or probably just below it (Source: Rapport du Comité des Sages à l’attention du GAPCM, du Gouvernement de Madagascar, de la Banque Mondiale et de l’UE; 2003, p.13).

2 There is no capacity reduction programme but the licence level is frozen to 1999 levels in order to avoid over capacity.

3 The ratio of catch per unit of effort is difficult to determine as offloading depends on the rejection level of the bycatch in shrimp fishing.

Fishing Potential of Malagasy waters

Resources

Potential
(tonnes)

Exploitation level

Observations

I. Marine and estuary resources

326 100



- Shrimp of the continental plateau
(industrial fisheries)

8 000

Optimal

Catch in 1987 over 9 000 tonnes

- Shrimp of the continental plateau
(traditional fisheries)

3 400

Maximal

Estimates of the catch in 1999

- Deep water shrimp

1 000

Under-exploited

Unknown potential

- Crabs (Scylla serrata)

7 500

Under-exploited

Estimates based on a productivity of 25 kg/ in ha/an for 300 000 ha of mangroves

- Red lobster of the continental plateau

340

Badly exploited

Catch in 1988

- Green lobster of the continental plateau

1 000

Under-exploited

Unknown potential

- Small pelagic fish

160 000

Not exploited

Acoustic evaluation, large part of non commercial species and/or fish of very small size

- Demersal fish

45 000

Under-exploited

Acoustic evaluation and trial fishing, soft bottom fish only, less than 50 percent of commercial value

- Tuna

51 600

Under-exploited

Estimate based on existing catch and on stock localized in the Madgascar-Comores-Seychelles triangle

- Reed algae

3 600

Under-exploited

Collect in 1973

- Trepangs

670

Over-exploited

Collect in 1990

- Fish from estuary waters

40 000

Under-exploited

Estimates on the basis of the area of lagoons and mangroves situated on the coast.

- Cephalopods

?

Under-exploited

Realized Abundance index (traditional fishing) near Ste Marie and in the South West

II. Resources in continental waters

40 000

Near maximum

Estimates on the basis of the area of fresh waters favourable to fishing (150 000 ha)

III. Aquaculture

105 000



- Fish farming

30 000

Under-exploited

Estimates on the basis of the area of irrigated rice cultivation which can accommodate fish farming and rice (150 000 ha)

- Mariculture

75 000

Under-exploited

Estimates on the basis of the existence, west of Madagascar of approx 50 000 ha of favourable sites of which 15 000 ha of basin

IV. Total

471 100



Source: MAEP, 2004


[386] Translated from the original French.
[387] This availability has been established taking into account a population of 16 million inhabitants.
[388] The Ministry of Agriculture and Fisheries defines the Directing Plans of Fisheries and Agriculture for a period of four years. These plans must integrate the programmes of the fish production sector at a regional level (Action Plan for Rural Development) and at community level (Community Plan for Development).
[389] Administratively, Madagascar is divided in six Faritany which can be assimilated to provinces: Antananarivo, Antsiranana, Fianarantsoa, Mahajanga, Toamasina, Toliara
[390] European Development Fund: http://europa.eu.int/scadplus/leg/fr/lvb/r12102.htm
[391] Wildlife Conservation Society (http://wcs.org/)
[392] World Wildlife Fund (http://www.wwf.org/)
[393] Carangidae, Mugilidae, Sparidae, Lutjianidae, Mullidae, Apogonidae, Rajidae family
[394] The tuna fishing fleet is made up entirely of foreign vessels but the Malagasy State determines the total volume of the take stipulated in international agreements on the basis of the advice of the following regional organization: the Indian Ocean Tuna Commission (IOTC), Southwest Indian Ocean Fisheries Commission (SWIOFC), Western Indian Ocean Tuna Organization (WIOTO) and the Indian Ocean Commission (IOC).
[395] This percentage of tonnage includes tuna, lobster, crab and algae fisheries, shrimp fisheries and its side take of fish. If the accessory take of shrimp fisheries is excluded, the percentage of managed fishing is 26.7 percent.
[396] Agence Française de Développement. (www.afd.fr)
[397] Fond de Développement Halieutique et Aquicole.
[398] Decree n°62.665 of 27 December 1962 which sets up the main measures regulating health and safety and the conditions in which maritime produce of animal origin destined to the market are preserved.
[399] Decree of 5 March 1986 on the exploitation of lobster, crab, olothurians and algae.
[400] Decree n°62.665 of 27 December 1962 which sets up the main measures regulating health and safety and the conditions in which maritime produce of animal origin destined to the market are preserved.
[401] Decree n° 200.139.
[402] Agence Française de Développement (www.afd.fr).
[403] Institut de Recherche pour le Développement (www.ird.fr).
[404] Yearly decree 4926/2004 of the 3rd of March 2004 establishing the distribution of licences until the end of the 2004 season.
[405] Industrial and artisanal shrimp catch contain from 34 percent to 63 percent of fish. Shrimp output varies from 6.5 to 13.1 kg/hour, fish output form 5.8 to 16.7 kg/hour.
[406] Decree n° 20510/2003 of the 01/12/2003 Establishing a «Standard Protocol» for fishing agreements.
[407] Decree 1613/2002.

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