Country review: Eritrea

Gary Morgan
FAO Consultant, Fishery Policy and Planning Division, Fisheries Department
August, 2004

INTRODUCTION

Eritrea occupies a key strategic position on the eastern side of the Red Sea, with an extensive sea area including approximately 355 islands. The length of its coastline is approximately 2 234 km in total, comprising 1 151 km of coast on the mainland and an additional 1 083 km of coastline to its Red Sea Islands. Eritrea claims a 12 nm territorial sea limit although the exact borders of its territorial sea remain in dispute in some areas.

Since independence in 1993 from Ethiopia, Eritrea has moved to both develop and manage its fisheries resources in accordance with the principles of Ecologically Sustainable Development. This development initially included agreements with foreign fishing vessels to enable them to undertake demersal fish (and, later, shrimp) trawling in Eritrean territorial waters during the period 1994-2001. These vessels have, since 2002, been replaced by agreements with local emerging companies who charter foreign trawlers from the region. These industrial vessels operate under close supervision, including licensing requirements related to quotas, seasons, closed areas and the presence of independent observers on board. At the same time, the artisanal fishery has slowly developed in cooperation with local village cooperatives and northern and southern Red Sea Administrative Regions, although it remains a smaller contributor to overall catches than the industrial sector.

Eritrea took the major step in 1998 of introducing a comprehensive and far-sighted Fisheries Proclamation, that includes, among other things, the designation of the Ministry of Fisheries as the management agency, the setting up of a Fisheries Advisory Committee that includes broad stakeholder representation, and including requirements of biological, economic and social analyses in management decisions. In addition, the Fisheries Proclamation allows for the protection of endangered species and sensitive marine areas, such as the extensive coral reefs of the offshore islands.

In 2003, the industrial fisheries of Eritrea contributed over 70 percent of total landings, with this being taken by 46 vessels, chartered from Egypt, Saudi Arabia and Ukraine. These landings consisted mainly of demersal and pelagic fish species although shrimp catches are an increasingly important component of the landings. The traditional artisanal fishery, on the other hand, consisted of some 3 000 people and operated over 600 small inshore vessels and has expanded steadily since independence in 1993. Management of the artisanal fisheries involves significant input from the 38 local village cooperatives (under the umbrella of six subregional apex cooperatives) and the Administrative Areas of the northern and southern Red Sea.

The fisheries of Eritrea have the potential for significant sustainable development with the landings in 2002 of around 9 000 tonnes being significantly less than the Maximum Sustainable Yield for all species, estimated in 1996 to be approximately 80 000 tonnes (see footnote 5).

The development of the fisheries sector in Eritrea to achieve its full potential is being undertaken in an orderly way and includes the joint development of industrial scale fisheries with the local artisanal sector. However, the extensive sea area of Eritrea (including the many islands) and the pressure on the limited resources of the Ministry of Fisheries to deter illegal fishing within the country’s EEZ will provide future challenges for the management authorities.

POLICY FRAMEWORK

The national authority with responsibility for fisheries management in Eritrea is the Ministry of Fisheries, which was provided with the authority to administer and manage fisheries through the Fisheries Proclamation in 1998. The Ministry of Fisheries includes Departments of Fisheries Resources Development (including responsibility for Research and Statistics), Fisheries Industrial Liaison, Training and Administration.

The policy framework for fisheries management and development is set out in the Fisheries Proclamation of 1998. In that Proclamation, the Principles of Management are stated as:

1) The Minister shall ensure that the aquatic and coastal resources of Eritrea are conserved and managed properly:

• to ensure that the living resources are not endangered by exploitation; and

• with the objective of ensuring that those resources produce the optimum sustainable yield taking into account relevant environmental, economic and social factors, including the development needs of Eritrea and of the region, fishing patterns, the interdependence of stocks, the interests of other states in shared, straddling and migratory stocks and generally recommended international minimum standards.

2) The Minister shall ensure that the access by other states to living resource in Eritrean waters shall be controlled and managed to ensure that the combined exploitation of any particular resource by both national and foreign fishing vessels during any period does not exceed any total allowable catch for the resource for that period determined by the Minister taking into account the best scientific evidence available to the Minister and other relevant factors, including the effects of harvesting on associated or dependent species.

The Principles of Fisheries Management therefore includes the requirements of consultation with stakeholders, biological, economic and social analysis to support management decisions and ecosystem considerations.

This policy is administered by the Ministry of Fisheries through the legislatively-required establishment of a Fisheries Advisory Council. This Council consists of:

• an officer of the Ministry who is responsible for administering and enforcing the Proclamation;

• a representative of the department responsible for ports and maritime transport;

• a representative of the Navy;

• a representative of the department responsible for economic development and/or investment;

• a representative of the Research and Training Division of the Ministry;

• an elected representative of persons engaged in artisanal fishing;

• an elected representative of operators of foreign fishing vessels fishing in Eritrean waters: and

• an elected representative of operators of national commercial fishing vessels (if any).

The Principles of Fisheries Management are also enacted through Management Plans for each fishery, which are a required process under the Fisheries Proclamation. Each Fisheries Management Plan must:

• identify each fisheries resource and assess the present state of its exploitation;

• specify the objectives to be achieved in the management of the fishery;

• specify the management and development measures required to achieve the objectives; and in particular;

• specify the licensing program to be followed for the fishery; the limitations, if any, to be applied to national fishing operations and amount of fishing, if any, to be allowed to foreign fishing vessels.

The Fisheries Management Plans are a key element in the management of fisheries and are required to be reviewed regularly, with a summary required to be published and made publicly available. In preparing Fisheries Management Plans, the Minister must:

• have regard to and guided by the principles set out in the Principles of Fisheries Management of the Proclamation;

• consult with persons engaged in the fishery, local authorities, other persons and government departments affected by the plan; and

• present a draft of the plan to the Fisheries Advisory Council for its opinion.

• consult wherever feasible with the fisheries management authorities of other states in the region, and in particular, with those sharing the same or related stocks, with a view to harmonizing and improving fisheries management in the region as a whole.

Research and enforcement functions, although administered by the Ministry of Fisheries are undertaken in collaboration with other agencies. Funds and technical expertise to undertake research (particularly stock assessment research) are often sourced from foreign donors and aid programs while enforcement functions are carried out in collaboration with the Eritrean Navy.

Funding for the Ministry of Fisheries to undertake its responsibilities comes from annual funding allocations from the Government. Revenues from fishing activities come principally from royalties and fishing license fees, particularly from the industrial fishery. While there is no formal link between the annual revenues received from these sources and the annual funding of the Ministry of Fisheries, in practice the two are usually closely linked.

International fisheries issues are also the responsibility of the Ministry of Fisheries. Eritrea participates in the activities of the International Tuna Commission and is a signatory to both CITES and to the Convention on Biological Diversity. Eritrea has not yet ratified the UN Convention on the Law of the Sea (UNCLOS) or the UN Fish Stocks Agreement or the FAO Compliance Agreement. However, it has used the FAO Code of Conduct for Responsible Fisheries as the basis for its fisheries legislation and practices are broadly based on this Code.

LEGAL FRAMEWORK

The basic fisheries law of Eritrea is contained within Proclamation 104 of 1998 (‘The Fisheries Proclamation’) which contains the details of not only the administration of fisheries in Eritrea but also the principles upon which fisheries are managed and developed. The Fisheries Proclamation provides an excellent legal framework for fisheries management in the country and contains requirements for consultation with stakeholders in management decisions (including neighbouring states where migratory or straddling stocks are involved), the consideration of biological, economic and social issues in management decisions and provisions for fisheries management decisions to consider broader ecosystem issues and protection of endangered species.

The principles of fisheries management specified in the Fisheries Proclamation are required to be formalized and administered for each fishery through the preparation of management plans, which are required to be reviewed regularly.

The Fisheries Proclamation identifies the Ministry of Fisheries of Eritrea as the responsible agency for managing fisheries in the country. The Ministry is therefore responsible for management, research and development and enforcement activities. However, the Fisheries Proclamation allows for ‘authorized officers’ to be empowered from other public agencies, thus allowing the Eritrean Navy to be actively involved in day to day enforcement activities. However, the Ministry of Fisheries retains ultimate legal responsibility for such activities.

The Fisheries Proclamation requires stakeholder consultation in management at two main levels. First, such consultation is required in the preparation of management plans. Secondly, the Fisheries Proclamation establishes a Fisheries Advisory Council with broad stakeholder representation (see Section II above). The role of the Fisheries Advisory Council is “to advise on the management and development of fisheries and discharge such responsibilities as are conferred on it under the Proclamation”.

Because the Fisheries Proclamation is relatively new, it has not yet been reviewed or revised.

STATUS OF THE FISHERIES

In the management and development of fisheries in Eritrea, the status of any fish stock is legally required to be considered in the preparation of management and development plans for that fishery. However, because of scarce financial and technical resources, comprehensive assessments of the main fish stocks are rare, with most studies having been undertaken in the 1960s-1980s. The last stock assessment survey of Eritrean waters was undertaken in 1996, in collaboration with French Government scientists^[258]. However, stocks are monitored through the collection of catch and fishing effort data and these data provide the main source for ongoing assessment of fish stocks in Eritrea^[259].

In the 1950s to the 1970s, Eritrean fisheries production was significantly greater than at present and the artisanal fishing industry was very active. Catches of well over 25 000 tonnes per year were reported in 1954, prior to the withdrawal of Yemeni fishing units^[260] with over 80 percent of this production consisting of small coastal pelagics - sardines and anchovy - which were processed into fishmeal or sun-dried in Massawa for export to European and Far East markets^[261]. Reported harvests were in the order of 19 600 tonnes for fishmeal, 1 250 tonnes for processed sharks, 150 tonnes for shells, and 1 300 tonnes for foodfishes. Fisheries in those early days were essentially oriented towards exports.

Production, around 21 000 tonnes in 1966, dropped to 14 000 tonnes in 1967. This was due not to any decline in the productivity of the fishing grounds but because of the closure of the Suez Canal and consequently of the major cheap fishmeal export route. Fish exports in 1966/1967 only amounted to some 5 700 tonnes of processed products. By 1972, growing internal warfare and subsequent instability provoked a further decrease in fishing activity and landings fell to 4 000 tonnes. This trend continued during the following years. Numerous fishing craft were destroyed and, without outlet for their production, local fishers increasingly turned to other activities or other countries. As a result, by the end of the 1970s, the fisheries had almost completely collapsed. According to various sources, total production only amounted to about 328 tonnes in 1980. With independence in 1993, the fisheries are being rebuilt and expanded to include an industrial fishing sector.

Despite the long time periods between comprehensive assessments, the estimates of Maximum Sustainable Yield (MSY) from the various studies^[262] are quite similar and are used (together with ongoing monitoring) by the Ministry of Fisheries for planning fisheries development.

Small pelagic resources (mainly the sardine, Harengula punctata, and anchovy, Thrissocles baleana and Amentum heteroboloum, comprise the majority of the estimated total MSY for fisheries resources at around 50 000 tonnes per year (Grofit, 1971). MSY for demersal resources, mainly, in order of greatest abundance, lizardfish (Saurida spp.), threadfin breams (Nemipterus spp.), barracuda (Sphyraena spp.), snappers (Lutjanus spp.), and groupers (Epinephelus spp.) have been estimated at around 15 000-20 000 tonnes per year while large pelagic (including tunas) MSYs have been estimated at around 7 000 tonnes per year. The remainder of the estimated total MSY consists of shrimp (500 tonnes per year), lobster and other minor species.

In total, the Maximum Sustainable Yield for all fisheries resources in Eritrea has been variously reported at around 80 000 tonnes per year. Current landings for all major species are significantly less than this and therefore fisheries’ planning in Eritrea in recent years has concentrated on development activities to increase landings in a sustainable way.

A summary of the characteristics of the major industrial and artisanal fisheries in Eritrea in 2003 is as follows: there are only small recreational fisheries and no data are available although recreational fishers need to be licensed (Table 1).

TABLE 1
Characteristics of the major fisheries of Eritrea

* Estimated Value in 2002 US Dollars.

MANAGEMENT ACTIVITY

The principles and goals of fisheries management are contained within the Fisheries Proclamation and in the management plans for the various fisheries. The Fisheries Proclamation also enumerates the types of management activities that are permitted. These are:

“Prescribed management measures may include but are not limited to:

• closed season and closed areas;

• prohibited fishing method and gear and specification of gear that may be used (including the mesh size of nets);

• the species, sizes and other characteristics of fish and other aquatic organisms that it is permitted or forbidden to catch; and

• schemes for the limitation of entry into all or any specified fisheries.

A regulation prescribing management measures may also prohibit the possession, purchase, sale, import or export of any gear, fish or other aquatic organism.”

All of these prescribed management measures are currently in use. Closed areas for trawling have been established around environmentally-sensitive coral reef islands, cod-end mesh sizes for demersal trawl nets have been set at 45 mm, entry to the industrial fishery is tightly controlled by limitations on the number of license issues, scoop nets are prohibited in waters less than 15 meters deep and various closed seasons are enforced.

In the industrial fishery, these management measures are enforced by on-board observers^[263] and inspections by the Eritrean Navy while local village and regional-level cooperatives are active in ensuring compliance with these management measures. It is reported^[264] that current compliance with management measures is very high although some illegal and unlicensed fishing apparently occurs in more isolated areas of the country.

Stakeholder participation in the development of fisheries policy and management measures is legislated within the Fisheries Proclamation and is extensively practiced. Collection of fisheries statistics from both the industrial and artisanal fleets was begun in 1996 and is well developed and provides the basic data for fisheries and stock monitoring. More comprehensive fisheries research is undertaken periodically, usually with assistance from aid agencies or through bilateral arrangements.

COSTS AND REVENUES OF FISHERIES MANAGEMENT

With the fisheries development and management processes now being well developed and with fisheries expanding, the costs of fisheries management and associated activities (enforcement, research and monitoring) are increasing. The Ministry of Fisheries receives an annual budget from the Government for its activities each year with this budget having increased over the past five years.

Revenues from fisheries licensing and royalties from the industrial fleet constitute the main source of fisheries-related income to the Government. With the increase in industrial fishing, these revenues are increasing and, in 2003, were around US$ three million per annum.

Although there is no formal link between the revenues received by the Government from fisheries royalties and licensing and the budget for the Ministry of Fisheries, in practice the Ministry’s budget has increased more or less in line with the increased revenues.

IMPLEMENTATION OF GLOBAL FISHERIES MANDATES AND INITIATIVES

Eritrea has not yet ratified the UN Convention on the Law of the Sea (UNCLOS) nor the UN Fish Stocks Agreement or the UN Compliance Agreement.

However, Eritrea is a signatory to CITES and also to the Convention on Biological Diversity and follows the FAO Code of Conduct for Responsible Fisheries in framing its national legislation and in preparing management plans for its fisheries.

The implementation of the provisions of International Plans of Action related to managing fishing capacity, IUU fishing, shark management and seabird bycatch in longline fisheries has not been pursued. As a result, no national plans of action for any of these issues are incorporated into national legislation.

PARTICIPATION IN REGIONAL FISHERY BODIES

Eritrea is a member of the Indian Ocean Tuna Commission and participates fully (as funding allows) in the committees and working groups of the Commission.

National legislation requires that regional fisheries issues are considered in making management decisions and in preparing management plans for highly migratory and straddling stocks.

SUMMARY AND CONCLUSIONS

Following the decline in landings in the late 1970s as a result of civil unrest in the country, Eritrea has moved significantly since independence in 1993 to redevelop and manage its fisheries resources. This development and management is being undertaken in an orderly way and takes into account current international norms and obligations, particularly those related to broader fisheries and marine ecosystem issues encapsulated within the concepts of ecological sustainable development.

The finalization of excellent national fisheries legislation in 1998 with the assistance of FAO (The Fisheries Proclamation) has been a major step forward to establishing a sound legal framework for the sustainable development of Eritrean fisheries. This legal framework is being supported by significant management action and close monitoring of fish stocks, most importantly through the preparation of detailed management plans for the industrial and artisanal fisheries. These management plans are prepared in close collaboration with all stakeholders and, as a result of this inclusiveness, respect for and adherence to fisheries regulations seems to be high.

As a result of this careful and orderly development of the fisheries sector, the landings from the marine fisheries of Eritrea have increased steadily over the past decade and only market development issues would seem to prevent further increases in the future. The industrial fishery has moved, in 2002, from one of permitting licensed foreign fishing in the EEZ to one where emerging Eritrean companies now are fully involved in industrial fishing activities, using chartered vessels. Importantly, these increasing landings (both from the industrial fishery and the artisanal fishery) and greater control by Eritrean industrial fishing companies has been accompanied by close monitoring of stocks and current information would indicate that most fish stocks are still significantly under-exploited and therefore further increases in sustainable landings can most likely be achieved.

REFERENCES

Bellemans, M.S. & Reynolds, J.E. 1992. Eritrean marine resources and fisheries in review: past developments and present indications. Sector Studies, No. 3. Fisheries Development Planning and Resource Management, Eritrea -- TCP/ERT/2251. Rome, FAO.

FAO. 2000. Report of a Regional Workshop on Fisheries Monitoring, Control and Surveillance FAO/Norway programme of assistance to developing countries for the implementation of the code of conduct for responsible fisheries. Sub-programme C: Assistance to developing countries for upgrading their capabilities in Monitoring, Control and Surveillance. (FISHCODE). GCP/INT/648/NOR: Field Report C-3 (En): 244pp

Ghebremariam, S. and Ghebretensae, Y. 2000. Fisheries Status in Eritrea: perspectives of Fisheries MCS, in FAO 2000. Report of a Regional Workshop on Fisheries Monitoring, Control and Surveillance FAO/Norway programme of assistance to developing countries for the implementation of the code of conduct for responsible fisheries. Sub-programme C: Assistance to developing countries for upgrading their capabilities in Monitoring, Control and Surveillance.(FISHCODE). GCP/INT/648/NOR: Field Report C-3 (En): 244pp. op.cit.

Grofit, E. 1971. The Red Sea fisheries of Ethiopia. Centre for Agricultural Cooperation with Developing Countries, Ministry of Agriculture, State of Israel.

Guidicelli, M. 1984. The Ethiopian fisheries: situation, development needs and opportunities. Report prepared for the Fishery Planning and Development Project. Field Document 1. Rome, FAO (FI/DP/ETH/82/016).

Sanders, M. and Morgan, G.R. 1989. Review of the fisheries resources of the Red Sea and the Gulf of Aden. FAO Fisheries Technical Paper. No, 304. Rome, FAO.

APPENDIX TABLES

Current management of marine capture fisheries in Eritrea

Use of fishery management tools within the three largest fisheries in Eritrea

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

Compliance and enforcement within the three largest fisheries in Eritrea

Capacity management within the three largest fisheries in Eritrea