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6. MANAGEMENT PROPOSALS

6.1 Preamble

Two distinct concepts are implicated in the exploitation of naked carp in Qinghai Lake. The natural growth in the quantities of fish that make up the population is the production, and the removal of fish from the population is the yield. Both are conveniently referred to a calendar year—this encompasses the entire fishing season, beginning in April or May and ending, in most years, in September or October.

Good fishery management maintains a balance between production and yield. The balance is maintained such that the yield is stable, within the limits of natural fluctuations, and at a level which is both economically profitable and sustainable in the long term. If an appropriate balance is not struck the population will decline and the fishery will fail. If recovery is possible, it may take a long time. The circumstances in Qinghai Lake, particularly the slow growth rate of naked carp and the cold climate, suggest that recovery could take many years. It is therefore critically important to avoid over-exploitation.

When previously unfished populations are first exploited on a large scale, the initial catch statistics always indicate a steep decline in the ease of catching fish (measured as catch per unit effort: CPUE). This will be manifest as a decline in the annual yield, and accompanied by a decline in the average size of the captured fish. The initial catches skim many old, large fish from the population and establish a new population age structure. The initial “boom years” of the fishery cannot be stabilised, nor can they be restored by management The long-term sustainable yield inevitably is at a level well below that of the early years.

The goal for management is to determine the sustainable yield of the fishery and to maintain the fishing effort within limits that perpetuate a balance between yield and production. The problem of finding and maintaining an optimal balance is complex, and requires a team of trained personnel, “performance” data and a considered management plan. The balance is dynamic, so that all parts of the fishery operation must remain flexible and subject to continuing review.

Ecological perspectives are at the core of fishery management, but there is a wider realm of social, cultural, political and economic perspectives that must be considered in formulating a strategy for development This report presents an ecological viewpoint and does not adequately address economic or other matters. Whilst the recommendations herein must be weighed against other, not strictly ecological concerns, issues relating to maintenance of the naked carp population should be regarded as not open to compromise because the population is the keystone of the fishery.

6.2 Present Status of the Fishery

The modelling study by Zhang and Chen (1980: section 5.8) might be refined in several ways, but it is an effective basis for interim management. The study suggested a maximum annual sustainable yield of 4791 tonnes, given an age of first capture of 10 years and a fishing mortality coefficient of 1.25. In 1975–77, when the age of first capture was 7 years and the fishing mortality 0.5, the yield was about 4200 tonnes. Zhang and Chen suggested that an increase in yield would be possible if the age of first capture was increased, in effect by increasing the trawl mesh size. They argued against an increase in effort, on the basis that the necessary high level of capital investment would not be economically justified by the increase in yield. This advice has been followed only in part:

Currently, the best available estimates for the yield of the fishery include the 1200-tonne factory quota, 800 tonnes taken by licensed gillnet fishermen, 1000 tonnes taken by unauthorised fishermen and 700 tonnes taken by piscivorous birds. The grand total of 3700 tonnes per annum probably is a conservative estimate, and the actual yield may well approach Zhang and Chen's estimates of 4200 tonnes (age of first capture 7 years) and 4791 tonnes (age of first capture 10 years) for the maximum sustainable yield.

The relative stability of catches and values of CPUE over the past two decades may suggest that the fishery is operating at near-optimal levels, in terms of the balance between production and yield. However, the progressive decline in the size and age of the captured fish, reflected in the present heavy reliance on immature fish, indicate that the situation is not stable. In the absence of more details, it would be prudent to assume that a stable yield can be sustained only by ensuring that the age of first capture is set to a minimum of 7 years.

It is very difficult, therefore, to reconcile the scale of new investments in plant and buildings with the ecological or economic status of the fishery. The apparent balance between production and yield suggests that there is no scope to increase the fishing effort (hence the yield). In addition, the low market status of naked carp products means that, if current management practices are continued, the return on investments will be exceedingly slow. Although balance sheets for the fishery have not been inspected, it is clear that the fishery operation has been heavily subsidised virtually since its beginnings, and it may never have recorded a significant profit

By economic criteria, the present fishery cannot be described as successful. Although there is scope for increased profitability (section 6.3), development is ultimately constrained by circumstances beyond the control of management An important caveat, however, is that economic criteria alone are not sufficient for judgements about the future of the fishery. Qinghai Lake is a resource for over 90,000 local residents, and the impact of changes in fishery management must be evaluated in the context of cultural, social and political values, as well as in terms of economics and ecology.

Establishment of the Fish Factory in 19S9 was part of a continuing phase of rapid development that in only two decades has more than doubled the human population of Qinghai Province (from 2.1 M in 1970 to 4.47 M in 1987). The population has increased also in the region of Qinghai Lake, particularly around the county town of Gangca and other north-shore irrigation areas. The environment will continue to change as the population grows and new industries are established, and there is no doubt that pressures upon the fishery will increase. The problems of managing the fishery already are complex, and will become more so in future.

Of all the biological processes that govern the well-being of the fish population, and the ultimate security of the fishery, recruitment is the most vulnerable to interference. There are already signs of degradation in the spawning areas in the Buna River and other inflowing streams, and the construction of weirs and diversions of flows to the irrigation areas would have had adverse effects on spawning populations and spawning success. It is vitally important to protect the spawning populations and their spawning environment, and it would be wise to put protective measures in place now.

6.3 Management Considerations

6.3.1 Fish Factory Operations

To visitors with experience of fish and fisheries outside Qinghai Province, there seems to be no reason why the local market value of naked carp should not approach that of common carp. This would represent a five-fold increase in the current value (cf. section 5.9.3). To accomplish this, the factory management needs to upgrade the handling, processing and marketing of naked carp products. Ideally, a comprehensive review of all operations should be undertaken by experienced advisors in consultation with management and other personnel. Some possible initiatives are suggested below. None is likely to succeed, however, without the support and cooperation of skilled staff and supervisors, aware that the product is perishable and that the profitability of the fishery rests upon high standards of efficiency and hygeine.

(a) Fresh Produce

The higher market prices commanded by fresh fish suggest that the factory would benefit by increasing that part of its catch that is sold direct At present the factory markets fresh fish only in April, presumably because temperatures then are low enough to safeguard transport in un-refrigerated vehicles. One advantage of fishing intensively in the early part of the season, as in April 1990, would be that processing costs would be minimised and profits would be increased by access to the fresh-fish market Improvements in cold-storage and insulated transport would be necessary to protect consignments of fish from deterioration in the warmer months. Supplies of fresh fish are available in Xining markets at other times of year, presumably from fishermen not associated with the factory and not encumbered by the logistic and economic problems of transporting large quantities without deterioration. Market research would establish whether consumer demand fluctuates through the season, and whether consumers might welcome increased supplies of fresh fish. It is acknowledged, however, that the price differential between fresh and frozen fish is small, and the marketing of fresh fish is better seen as part of a range of measures to improve market value.

(b) Handling

The objectives of the handling operation are to catch the fish and to transport them, with minimal damage and contamination, to the processing facilities. There are many ways in which the operation could be streamlined, as the present methods involve unnecessary labour and damage and deterioration of the catch. Standards of hygeine also are poor. The following suggestions include some points made by Chen (1992).

If crates are to-be used, they should be cleaned before use and discarded if broken. Fish should be stored loosely in the crates, without over-filling, and packed with ice. The crates should be transferred to the hold to protect the catch from exposure to the weather and to minimise clutter on deck. The process of transferring crates from the hold could be improved by stacking the crates on platforms in the hold, and using a power winch to transfer the loaded platforms to the waiting truck. This should be accomplished immediately on arrival at the jetty. The crates should not be unloaded until they reach the processing room. Consideration might be given to making the crates serve as freezing trays, so that handling is minimised.

Crating the fish on board (and later unloading) causes damage that might be avoided by unloading the trawl net directly to the hold, and from there by winch to the truck. If feasible, this would also overcome the expense, hygeine and other problems associated with crates. The fish would then be boxed only prior to transfer to the freezer.

The use of ice would require installation of appropriate equipment at the factory. A better long-term option would be to convert the holds to refrigeration, if funds permit

(c) Processing

The processing phase should be optimised to protect the fish from deterioration, to package and deliver it to market in presentable condition. The following remarks relate only to present methods for production of frozen fish, and make no reference to processing of alternative products (see section (d), below).

Freezer trays should be routinely cleaned and stacked above floor-level to avoid contamination by washings, discarded fish and algae. The cleanliness of the processing area, and sanitation in general, should be subject to more rigorous control.

A roller conveyer could be installed to move trays over the 50-m path from the packing area to the point where they are loaded on to trolleys, ready for the blast freezer. This would avoid labour and obviate damage to the fish caused by stacking in crates.

The frozen blocks should be packaged to protect the surface from freezer burn, to advertise the product and improve its appearance.

The arrangement of frozen blocks in the cold store should be changed to promote air flow, temperature control and easy loading and unloading. Temperature control could be improved by installing a monitor accessible from outside the store, rather than inside as at present

Transportation of frozen blocks should be in insulated (even refrigerated) trucks to prevent deterioration. Re-freezing of thawed blocks must be avoided because of the likelihood of bacterial contamination and consequent danger to consumers.

(d) Marketing

The goal of improved marketing is to increase the attractiveness of naked carp products, and thereby gain a better return from consumers. The nature of local markets is influenced, of course, by cultural factors and the general poverty of the region, and as stressed earlier the economic arguments must be tempered by the likely social, political and cultural impacts of change. If the market value of naked carp is increased, it could become inaccessible to those are least able to afford it If this is correct, it may be necessary to preserve at least part of the local market (and perhaps that in Lanzhou).

There may be scope to promote sales of fresh fish, and the product could also be improved by gutting the fish over ice.

A more profitable venture may be to develop specialised, higher-priced products for export markets in the more affluent areas of China. This would be constrained by present practices of processing and handling, the cost of promotion and the lack of appropriate transport facilities.

Although the provincial government has considered diversifying naked carp products, initiatives are limited by the lack of equipment, expertise and skilled personnel (Chen 1992). Before marketing development can proceed, it will be necessary to obtain expertise and, preferably, to establish a pilot plant to experiment with new product lines. A simple minced-fish plant would be enough to develop a range of convenience products. It may be advantageous to market these under a name that did not cause consumers to associate them directly with naked carp.

A further important part of factory operations that is not directly related to handling, processing or marketing is the maintenance of statistical records. This is considered in section 6.3.4.

6.3 2 Rationalisation of the Fishery

In some respects the Fish Factory is a minor “partner” in the Qinghai Lake fishery. If the best-available estimates are correct, gillnetting by licensed and unlicensed fishermen accounts for about 1800 tonnes, or 50% more than the factory quota. Although the gillnet fishery is partly regulated, in that nets are issued to fishermen under license, there appears to be no monitoring of catches. There are too few fishery police to adequately enforce the regulations, and the lack of statistical data to describe the catch, legal and otherwise, means that management has little information about the status and performance of the fishery. Without the appropriate resources and supporting information, management cannot become more sophisticated.

It is reasonable to ask, however, whether the fishery needs a more sophisticated form of management than it has at present If the Fish Factory were to continue trawling under the regime that has applied for the past five years (with due regard for the need to increase the trawl mesh size and protect the spawning stocks and their environment), and if the licensed and unlicensed gillnet fisheries were not allowed to grow larger, it may seem that the present level of catches could be sustained indefinitely.

On reason why the status quo cannot be preserved is that the lake environment is changing. The falling lake level has affected the fish population in several indirect, if not direct ways, and may have direct impacts in future. For example, there are problems of erosion and siltation in the inflowing rivers that provide the vital spawning grounds. The new irrigation areas, with associated weirs and flow diversions, also represent a threat to spawning areas. As the human population grows larger, more settlements and industries will be established and impacts on the lake and the fish population will increase and diversify.

Another reason why management should be reviewed is that the three arms of the fishery (the factory and licensed and unlicensed fishermen) are under different pressures to change their pattern of exploitation. The factory seeks to recover its investments in new trawlers and other facilities, and the licensed and unlicensed fishermen presumably will grow in numbers as the local population increases.

If the status quo is discounted, there are perhaps two main options:

  1. Relinquish government control of the Fish Factory and pass control of the fishery to a cooperative formed by the lakeside communities.

    This may have some social and economic benefits for the local residents, but a cooperative would not be well-prepared to undertake management of the fishery in a changing social, economic and ecological environment Access to high-level expertise, whether in fishery biology or marketing, is likely to be easier for a government agency. Such an option would also mean that the provincial government would need to write off its investments. This option does not appear to serve the best interests of the government or the fishery, at least in the short-term.

  2. Review the structure and operations of the present fishery with the aim of bringing all elements together under a central regulatory authority.

    The Bureau of Aquatic Products, or a regional Fisheries Management Station, would be the appropriate agency to coordinate the various groups exploiting the fishery, to monitor the changing balance between production and yield, to determine catch limits and supporting regulations and to enforce the regulations. Such a rationalisation need not prejudice the dependence of local residents on the lake fishery. Although there are some attendant dangers and disadvantages, the essential goal would be not to increase bureaucratic controls but to provide the basic information and resources necessary to regulate the fishery in the common interest

The 1200-tonne factory catch and the 1800-tonne combined gillnet catch probably are in about the right proportions. There is evidence, however, that the trawl fishery takes significant numbers of undersize fish (below seven years of age), and is therefore causing damage to the population. It may also cause damage to the lake-bottom environment (it would be useful to make comparative surveys before and after trawling). In this regard, trawling should be restricted (perhaps banned) in areas known to be feeding grounds for the naked carp.

6.3.3 Policing

There are too few police officers to adequately patrol the lake region, with the result that the fishery regulations (Appendix V) are widely disregarded. For example, there is intensive fishing at the mouths of the Buha and Shaliu rivers, although these are prohibited areas under the regulations. The migrating fish stocks and their spawning areas require close protection to sustain recruitment to the fishable population, and are the most vunerable part of the fishery. If it is impractical to deploy a larger police force around the lake, it would still be desirable to maintain a stronger, more obvious police presence near the main spawning rivers during the season.

A secondary benefit of having officers stationed around the lake is that, with some initial guidance, they may be able to make observations of value to management Indeed, at present the only available estimate of unauthorised fishing in the lake comes from observations by a policeman.

6.3.4 Fishery Statistics

It is axiomatic that good management requires good information. The fishery logbook data have been a source of valuable information in this investigation, despite their deficiencies (section 5.4.1), and it is important that this database should be extended and upgraded to provide for future management.

The value of the logbooks, other than as administrative records, is presently not recognised by the Fish Factory. Their value for management would be greatly enhanced if the accuracy and completeness of the records were improved, and if they could routinely be made available for analysis by fishery scientists and managers. The data need to be supplemented by routine checks on the composition of the catch (e.g. length, weight, age and sex), to monitor the status of the population. An appropriate standard would be to measure samples of 200 randomly-selected fish at monthly intervals during the season.

Accurate records are also required to describe the catches taken by licensed and unlicensed fishermen. The records should include information comparable to that maintained by the trawler captains (i.e. number of fish, area and time fished, gear characteristics, etc.). In the case of the licensed fishermen it may be possible to offer some incentive (e.g. license renewal) for the return of useful data. The problem is much more difficult for unlicensed fishermen, but as a minimum it would be useful to ask the police to estimate the total catch using the best means at their disposal.

6.3.5 Environmental Monitoring

The lake environment is changing as a consequence of increasing aridity and the pressures accompanying growth of the local human population. Just as it will be necessary to monitor the composition of the catch, it will be necessary to monitor the condition of the lake and the inflowing streams. Particular attention should be given to spawning areas, with regards for siltation, erosion and nutrient levels. The monitoring program should include observations of plankton and benthos communities, as these may show the effects of environmental changes in advance of the fish population.

6.3.6 Protection of Spawning Environments

Ultimately, the production of naked carp in Qinghai Lake probably will be governed more closely by processes related to recruitment than fishing activity. The spawning population therefore needs protection to ensure that it sustains a level of recruitment that is commensurate with the removal of fish by netting and trawling.

Recruitment presently is jeopardised by two kinds of factors. The first relates to changes in river environments and includes bank erosion and siltation in spawning areas, sediment loads associated with grazing, cropping and other forms of land use, nutrient loads associated with human settlements (including land used for pasture), construction of weirs across streams and diversion of flows for irrigation. Problems of bank erosion and siltation are best addressed by bank-stabilisation works, on a larger scale than those that presently exist along the Buna River. Catchment erosion and nutrient enrichment do not appear to be major problems, but do require monitoring. The weirs on the Haergai, Qianji and Shaliu rivers represent impassable barriers to migrating fish and exclude them from suitable spawning areas further upstream. Although naked carp are reportedly able to leap small obstacles, they cannot pass weirs like that on the Shaliu. Three possible ways to overcome this problem may be as follows:

The diversion of flows for irrigation threatens the security of spawning areas below weirs. The diversions should be regulated to the extent that the parent stream retains a minimum base flow that will sustain spawning. The magnitude of the base flow would best be determined by experiment

The second kind of factor affecting recruitment relates to intensive fishing, particularly of larger fish, during the spawning migration. Although regulations exist to limit the impact of fishing during spawning, they are not policed. The regulations need to be widened to protect the spawning environment, as well as the fish.

6.3.7 Personnel and Personnel Management

One of the fundamental difficulties encountered in the course of this investigation was in relation to personnel and personnel management The tasks required of a fishery biologist are not easily assumed by people without any background in cognate areas. Once the basic skills have been learned, perhaps in a specialist training course, they require continued application and refinement The Lake Investigation Team was staffed mainly by inexperienced workers (i.e. without backgrounds in limnology or fishery biology), and attempts to train new staff and develop skill levels generally were rendered ineffective by frequent staff changes. Those at middle levels of management do not find it easy to delegate tasks, monitor performance or set deadlines for completion.

Before new training courses are considered, it will be necessary to establish a staffing structure (“a career path”) that will encourage people to acquire specialist skills and give them an expectation of continued employment in the same sphere for a time sufficient to gain basic skills, maintain continuity and develop real expertise. Basic skills may be developed by sending personnel to other institutions for instruction and practical experience (as in the present investigation: see FAO 1992), by employing trained personnel from other parts of China, or by inviting specialists from China and other countries to work with the management team for appropriate periods.

6.3.8 Adaptive Management

Fishery management potentially is a complex undertaking, requiring a blend of skills contributed by a team of people from a variety of different, but related disciplines. Apart from the basic complement of administrators, handlers, processors and marketing specialists, the staffing structure should include one or more biologists, with experience in field sampling, fish population biology and lake ecology, chemists with experience in water-quality assessment and statisticians with experience of computers, database management and modelling. The team members should communicate frequently to review progress and plan new initiatives. As management assumes more sophistication, it will be possible to formulate and refine a working model (or models), where data are stored in a form that permits answers to questions about the performance of the fishery and its likely response to changes. The collaborative development of integrated models, serving both scientists and managers, has been called adaptive management (Walters 1986).

6.3.9 Potential for a Naked Carp Hatchery

The technology for artificial induction of spawning of naked carp is well-known, and basic design criteria and techniques for hatchery production have been established as part of the present project (Muir 1990). Indeed, considerably faster growth rates than those of the Qinghai Lake population have been attained under hatchery conditions (section 4.7.6), reflecting the longer growing season in ponds at lower altitude. In addition, there are suitable hatchery sites along the Buha River and perhaps the Shaliu River. It would be technically feasible, therefore, to build a hatchery to propagate fish for release to the lake, or to maintain populations in pond culture.

There are two basic arguments against establishment of a hatchery. One is that the present market value of naked carp products would not justify the costs of hatchery development, including the capital costs required for construction and plant, and the recurrent costs for hatchery operations (spawning, feed production etc.).

The second counter-argument is that there is presently no conclusive evidence that recruitment is limiting production of naked carp in the lake (although it may do so in future if spawning environments are further degraded). More immediate controlling factors are likely to be the cold climate, the oligotrophic lake environment (thus low food production) and the innate biological characteristics of the fish itself. Under these circumstances, using hatchery operations to augment natural recruitment would appear to be ineffective.

The case for hatchery development in future would be considerably strengthened if the market for naked carp can be expanded and diversified, as proposed in section 6.3.

6.3.10 Translocations of Naked Carp

As mentioned (sections 4.4, 4.10), naked carp from Qinghai Lake have been successfully translocated to Huangqi Lake, a moderately saline lake (18 g L-1) in Inner Mongolia, as part of a plan to rehabilitate the local fishery. After three years the body weight of the translocated fish had attained a growth rate approximately three times that in Qinghai Lake. This demonstrates that there may be unexploited potential for other translocations of naked carp, specifically G. przewalskii. The species is a valuable asset in a region where saline lakes are abundant, because it is able to tolerate unusually high levels of salinity and alkalinity. Translocated populations may have value as subsistence fisheries, but the practicalities of distribution on a wider scale depend upon a greater market demand.

6.3.11 Translocations of Other Species

Some consideration has been given to the introduction of other fish species to diversify the Qinghai Lake fishery. In the 1960s unsuccessful attempts were made to introduce rainbow trout, Oncorhynchus mykiss, and the mullet, Mugil soiuy (e.g. Li 1959). In general, the harsh environment militates against other species, and the fact that G. przewalskii is endemic to the lake also must argue against further attempts at introductions, because the survival of the species would be threatened.

6.4 Extended Studies

This project has laid foundations for a more sophisticated fishery, but many of its accomplishments will not be realised without a continued commitment by the government The leading role should be assumed by a provincial authority like the Bureau of Aquatic Products, although at the time of writing (January 1993) there are indications that the structure and operations of the Bureau may be reviewed and many of its personnel re-deployed. Whichever may be the responsible authority, it will continue to need help from other Chinese and international agencies able to contribute expertise and financial support. The recommendations herein probably cannot be implemented by personnel lacking training and experience in fishery management.

The most conservative options for future development (other than to maintain the status quo) would be to rationalise the structure and operation of the fishery and to undertake measures to protect the naked carp population and its environment, particularly the main spawning and feeding areas. These changes would promote greater efficiency and profitability of the fishery, and contribute to long-term conservation of the resource.

Qinghai Lake, however, is only one of four capture fisheries in Qinghai Province. Those at Keluke Lake, and at Gyaring and Ngoring lakes on the upper Yellow River, also make significant contributions to the regional economy, although very little is known of their operations and ecological status. If the Qinghai Lake fishery investigation is continued, it would be wise to extend it to include reviews of the three other capture fisheries, and perhaps also potential fisheries elsewhere in the province.

The pilot aquaculture program (FAO 1992) has demonstrated considerable potential for aquaculture in Qinghai, particularly of rainbow trout If the experience of neighbouring Xinjiang Province is repeated, the yield from aquaculture will soon rival and perhaps exceed that of capture fisheries. If the expansion of aquaculture and capture fisheries was coordinated there would be many “economies of scale”, in that personnel, expertise and resources could be interchanged. Fishery biologists could help to promote orderly development by monitoring the environmental impact of aquaculture development, especially with regard for the status of native fish populations, and by helping to selecting suitable sites.

Qinghai Lake provides many resources other than those relating to the fishery. Ideally, the fishery should be managed as part of a comprehensive program linking the needs of irrigators, graziers, residents, tourists and other users with the maintenance requirements of the lake ecosystem itself. Another possible extension of this project therefore could be to be undertake a wide-ranging environmental investigation of the lake, designed to formulate a strategy for development that is consistent with all the various interests. It would be helpful to utilise the resources and expertise of Academia Sinica, responsible for the most comprehensive investigation so far undertaken of Qinghai Lake.


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