compiled by
Michael J. SANDERS
(Fishery Development Specialist)
FEBRUARY 1987
RAF/79/065/WP/35/87/E
SWIOP DOCUMENT OISO
RAF/79/065
REGIONAL PROJECT FOR THE DEVELOPMENT & MANAGEMENT OF FISHERIES IN THE SOUTHWEST INDIAN OCEAN
PROJET REGIONAL POUR LE DEVELOPPEMENT ET L'AMENAGEMENT DES PECHES DANS L'OCEAN INDIEN SUD-OCCIDENTAL
c/o UNITY HOUSE, P.O. BOX 487, VICTORIA, MAHE, SEYCHELLES
TELEPHONE: 23773
TELEX: 2254 SWIOP SZ
The designations employed and the presentation of material in this publication do not imply the expression of any opinion whatsoever by the Food and Agriculture Organization of the United Nations concerning the legal status of any country, territory, city or area or of its authorities, or concerning the delimitation of its frontiers or boundaries. The views expressed are those of the author.
This electronic document has been scanned using optical character recognition (OCR) software and careful manual recorrection. Even if the quality of digitalisation is high, the FAO declines all responsibility for any discrepancies that may exist between the present document and its original printed version.
STATEMENTS OF POLICY AND PLANNING
MOZAMBIQUE
TANZANIA
KENYA
SOMALIA
SEYCHELLES
COMORES
MAURITIUS
MADAGASCAR
This paper was originally prepared to serve as a background document for those attending the Indian Ocean Fishery Commission (IOFC) Committee for the Development and Management of Fisheries in the Southwest Indian Ocean, held in Zanzibar during 3-7 November 1986. It contains a summary of recent policy and planning statements for each of the countries served by the Committee; these being Mozambique, Tanzania, Kenya, Somalia, the Seychelles, Comores, Mauritius and Madagascar.
The information sources from which the paper was prepared are various, in some cases the Governments or government agencies, and in others from advisory missions fielded by outside organizations. Only in the case of the Seychelles is there a policy and planning statement specifically prepared for fisheries, and with the intention of general distribution.
In the case of most of the other countries, fisheries aspects are incorporated as a component within the National Plans.
The statements are all a reflection of national aspirations, and as such the document should not be construed as an attempt to describe the regional consensus. It is only recently, with the development of a substantial purse seine fishery for tuna, that the advocacy of regional cooperation/coordination has gained impetus. So far this has largely been confined to the creation of a tuna fishery data bank, data exchange, and cooperative research.
Finally, it is stressed that policy and planning is not a static process, and that the descriptions in this document may rapidly become out of date. When this is of particular concern, direct contact should be made with the government(s) concerned, and confirmation or otherwise obtained.
MOZAMBIQUE
TANZANIA
KENYA
SOMALIA
SEYCHELLES
COMORES
MAURITIUS
MADAGASCAR
(The following is a translation of a document especially prepared for the Committee meeting by Ms Elisa Santos, Fishery Economist, within the Directorate of Economy in the Secretariat of state for Fisheries.)
At the beginning of the 1980's, after adjustments to the sector, the establishment of a central entity within the State responsible for fisheries administration, and the attainment of first knowledge concerning the productivity of the fisheries resources, it became possible to formulate the outlines of a policy for fisheries development.
As a principal condition of the policy, it was decided that the sector should be financially self-sufficient, and able to meet its own hard currency requirements. In this respect it was expected to generate sufficient export trade to provide a surplus for use in the country generally, as well as meeting its own operating costs, and the costs of its own development, with assistance if possible from international sources.
In summary; the main concepts embodied within the policy are as follows;
(1) Development of the artisanal and semi-industrial fisheries, with the objectives of increasing their contribution towards achieving food self-sufficiency, and improving the living conditions in the coastal communities.
The low level of production, caused by the fishing techniques used' poor communications and storage facilities, have prevented these fisheries from making an important contribution to the supplies of fish in the interior and urban areas of the country. In respect to adressing the problem, priority is being directed towards improving the performance of the artisanal fishermen using the traditional fishing techniques.
One of the actions being undertaken is the gradual creation of a network of artisanal fisheries development centres (Combinados Pesqueros), covering the most important fish producing areas, and having the following objectives;
- to experiment and communicate information about improved or new fishing techniques- the distribution of fishing materials and gears, stores and other goods as necessary
- the purchase, storage and transport of fish products
- the establishment of repairs and maintenance workshops
- the distribution of fish products, with the surplus to local needs going to rural and urban centres
Fisheries development centres have been created in Ibo, Pemba, Metangula, Mozambique Island, Moma, Sopinho, Beira, Nova Chicoa, Inhaca, and also shortly in Inhambane.
(2) In relation to the industrial fisheries, the objective is to promote the catching of fish for export, so as to provide hard currency to finance the development of the sector, and include a surplus for general use within the country. At the same time these fisheries are expected to make a substantial contribution towards food self-sufficiency, with quantities of product being distributed, particularly in urban centres, to reduce the necessity for imports.
These fisheries are oriented towards the utilization of resources that cannot be exploited at the semi-industrial level, and which use more complex technologies, and are organized with different forms of ownership (eg. private, statal, and mixed).
The recent trends in the development of industrial fishing can be explained by the fact that the country possesses neither the technology nor sufficient skilled manpower to enable the development of export oriented crustacea fisheries, or the capture of quantities of fish for local consumption, without the association of foreign shipowners.
(3) Creation of a service for the product-ion of materials and equipment needed by the sector, and technical support, particularly as required within the semi-industrial and artisanal fisheries.
The importation and distribution of fishing equipment, spare parts etc.. forms a major part of the activity, along with the creation of a network of privately owned wholesale and retail outlets, the construction and repair of small fishing boats, the local production of fishing nets, and technical assistance in the use of equipment.
It has been possible in recent years
- to enlarge the range of items produced within the country- to increase the quantities of materials and equipment distributed amongst the small scale fisheries to 180- 200 000 "contos" per year
- to build around 400 small artisanal type fishing boats, representing an increase in fish production of not less than 8 000 tonnes per year, which have been distributed by the provincial authorities through their territorial plans
- to double the production of nets to reach about 60 percent of the national requirements
- to commence technical assistance for certain makes of equipment, with the help of the manufacturer.
In continuing these efforts, the range of items that are nationally produced has to be increased. This should enable the development of the small scale fisheries to be sustained, according to the structure of the national industry.
(4) Conduct of research and the management of the fisheries resources, so as to increase the level of knowledge, and to ensure a rational and sustainable exploitation of the resources.
It is already known, from the work done in recent years, that the potential yield from the marine waters and inland lakes is about 250-270 000 tonnes per year. This is four times the estimated total production, from which it is possible to appreciate the importance of the fisheries in the economic development of the country.
(5) Technical and professional training using where possible the national training facilities, otherwise using the facilities available in foreign countries.
In recent years about 250 professionals at the basic level have graduated from the fisheries school, and around 100 students are attending medium level training outside the country.
(The following are extracts from A Framework for the Formulation and Implementation of a National Fishery Policy (FAO/GCP/INT/398/NOR; 3 September 1984), prepared under the FAO/Norway Programme to assist the Ministry of Natural Resources and Tourism)
The prime considerations shaping the Tanzania National Fisheries Policy are to increase fish production and raise per capita consumption of fish through rational exploitation and effective utilisation of the resources.
Given the overall National Policy of Self-Reliance, it is also recognised that the traditional, small-scale inland and marine; fisheries, which make minimum demands on capital, foreign exchange and infrastructural facilities, will continue to be the country's main fish production sectors and that the communities concerned in the operation of these fisheries should receive increased benefits through their development.
The need and capability of the fishing industry to earn increased foreign exchange is also recognized and, with a view to giving focus and commitment to the attainment of this objective, specific measures have been suggested (summarized later). The need for strengthened resource management measures is also stressed.
Fisheries Policy
With particular importance placed on the role of the traditional inland and marine small-scale fisheries, but including other sectors of the industry concerned with the exploitation and utilization of the resources, national fisheries policy aims to:
- increase fish production through the rational exploitation, improved distribution and effective utilisation of the inland and marine fisheries resources' including aquaculture; raise the per capita consumption of fish; expand export markets for fish and fish products; and increase the earnings of the fishing communities.
Objectives
- to increase fish production, consistent with the level of resources, through the provision of adequate supplies of fishing gear, equipment and spare parts for all sectors of the industry- to continue and strengthen pilot and experimental work on aquaculture with a view to the expansion of aquaculture in selected areas of the country
- to expand export markets for shrimp with maximum participation of small-scale fishermen in the exploitation of these resources but not excluding commercial-scale operations
- to develop export markets for Nile perch with the maximum participation of the small-scale fishermen
- to improve the quality of data and statistics relating to the industry, necessary for the effective management of the resources and development of the industry
- to strengthen fisheries research activities related to the needs of the industry
- to introduce and apply the measures needed for the effective management of the resources
- to promote and participate in regional collaborative and cooperative efforts for the rational management and exploitation of those fisheries resources shared with neighbouring states
- to collaborate with appropriate national and international organizations and institutions in the planning and implementation of measures necessary for the protection of the aquatic environment
Summary of Conclusions and Recommendations
General:
- a realistic sustainable annual Yield from the marine and inland fisheries resources might be of the order of 293 000 tonnes; increased production is most likely to come from a moderate expansion of Lake Tanganyika and marine fisheries in general, and more specifically from the exploitation of Nile perch in Lake Victoria, the inshore shrimp and fish stocks of the Rufiji Delta and similar areas together with, in the long run, the development of aquaculture
- fisheries development and the attainment of the above objectives is severely impeded by the acute lack of foreign exchange which has led to breakdown in plant, equipment and transport in all sectors of the industry, and a chronic shortage of gear and equipment. This must be remedied if present production levels are to be maintained and increased through the developments envisaged
- unless steps are taken to allow the Fisheries Department to excercise authority and control over the deployment of its field staff and the planning and conduct of their work programmes, planned fisheries development and management programmes cannot be implemented
- continuing technical assistance and advice is needed in all fisheries sectors to assist in the attainment of the objectives of fisheries development and management
- in view of the minimal contribution made by the parastatal bodies, the Tanzania Fisheries Corporation (TAFICO) and the National Cold Chain Operations Limited (NCCO), to fisheries development! and bearing in mind their substantial and continuing losses, the government should give urgent consideration to their future role.
Fishery Administration:
- subject to the direction of the Director of Fisheries, to whom they will be directly responsible, Regional Fisheries Officers should have full authority and responsibility for the planning and conduct of all regional and district level fisheries activities within their areas of operation
- specific allocations of transport and operating funds should be made to the Regional Fisheries Officers for the conduct of their work programmes
- selected regional and district level field staff should be given the opportunity to undertake refresher training at appropriate national training institutions or to participate in study tours of various fisheries developments of interest and possible application to the needs of their areas
- there should be close collaboration and cooperation at regional and district level between the fisheries staff and their counterparts in such sectors as agriculture, forestry, livestock, wildlife, tourism and all other appropriate sectors where there may be issues of common interest or concern, as well as with the local communities concerned.
Fishery Training:
- general introduction of short-term in-service training in specialized subjects to complement long-term formal training and the provision of refresher courses.
Fisheries Research:
- technical advice should be obtained to assist the Tanzania Fisheries Research Institute (TAFIRI) in establishing sound fisheries research programmes (more details are provided in the original report)
- TAFIRI should engage itself in the compilation, analysis and evaluation of fisheries data collected over previous years, both at the regional and central levels
- Fisheries Research Officers should be regularly put aboard commercial vessels to carry out a biological programme for monitoring the- stocks, as well as participating in the fishing programme from the vessel MAFUNZO and other activities undertaken at the Mbegani Fisheries Training Centre.
Fisheries Statistics:
- data compilation should be speeded Up to prevent the time lags between collection and availability, now extending into several years
- this will require a strong centralized approach to the collection of statistics, under the direct control of the Director of Fisheries, and improved transport allocations to allow adequate Supervision
- the already established post of Senior Fisheries Officer (Statistics) should be filled as soon as possible
- to strengthen and improve the present statistical collection systems, various forms of technical assistance and advice are required (these are specified in the original report)
Fishing gear, Equipment, Spare Parts:
- a greater proportion of the fishing nets manufactured by the local net factories should be reserved for the Tanzanian fishermen; at present, around 40 percent of total production has to be exported
- increased and specific allocations of foreign exchange earned from the reduced level of exports should revert to the net manufacturing companies, to permit the import of increased supplies of raw material, spare parts, and equipment for the repair and maintenance of the machinery, in order to bring the factory Up to full capacity
- a detailed study should be made of the requirements of the NCCO in respect to transport, plant, equipment, and spare parts, necessary to bring it Up to full operational efficiency for the reduced scale of operations envisaged for the company
- a similar study should be made of the needs of the Fisheries Division and its affiliated institutions concerned with training and research
- consideration should be given to the establishment of a Fisheries Development Fund, from which disbursements could be made on the advice of an Advisary Committee to various sectors of the industry which it is in the national interest to maintain at the highest operational efficiency
(The following is an extract from the Kenya Development Plan 1984-1988?
Perspective
Great progress has been made in the fisheries since Independence resulting in increased fish production. Total fish landed in 1963 was about 19 700 tons valued K Pounds 1.1 million. This increased to 80 000 tons in 1982 and was valued at K Pounds 11 million.
Because of the very specialized nature of coastal and marine fishing and the low level of technology used, the amount of fish landed at the coast increased very little; from 5 000 tons in 1962 to 6 000 tons in 1982. In contrast, there has been a rapid development in fish farming which is now capable of producing 550 tons per year.
Target Production
The target level of fish production to be reached by 1988 will be 120 000 tonnes broken down into
|
- Lake Victoria |
50 000 tonnes |
|
- Lake Turkana |
15 000 tonnes |
|
- Lake Naivasha |
1 250 tonnes |
|
- Lake Batingo |
750 tonnes |
|
- Other Freshwaters |
7 000 tonnes |
|
- Marine Fisheries |
20 000 tonnes |
|
- Coastal Aquaculture |
6 000 tonnes |
Development Activities
Emphasis will be given to fish farming as this contributes more to the improvement of the nutritional status of local communities, earns money to fish farmers and fits well in waterlogged soils and mangrove swamps. Shrimp farming will be intensified to earn more foreign exchange.
Specialised extension services for fishermen will be given to strengthen fishing and fish handling capabilities of small-scale fishermen.
Introduction of new fishing gear and improvement in transport facilities as steps to increase production of inland waters.
Restocking of Lake Victoria, Lake Turkana, and Lake Naivasha. Planting trees and grass around Lake Baringo in order to curtail the siltation process.
Better exploitation of the ocean and Lakes will be achieved by the intensive use of vessels belonging to the Kenya Fishing Industries and the use of appropriate boats and better fishing techniques. Boat making will be given more attention.
The establishment in Mombasa of a fish canning plant will be encuraged.
Encouragement will be given to the establishment of ice making plants at Mukue on the north coast' Shimoni on the south coast, Kisumu and Homa Bay to provide ice for the preservation of fish and fish products.
Formation of a Fish Development Authority is planned to develop and exploit fish resources including processing, marketing and distribution of fish and fish products.
The Fisheries Department is establishing fishing stations within the major fisheries to facilitate the smooth administration of fishing activities and provide the necessary extension services to fishermen.
Research
Fisheries research has provided new, better Yielding species along with new methods for fish propagation, control of fish diseases and the development of appropriate fishing gear suitable for Kenya conditions. The Kenya Marine and Fisheries Research Institutes will conduct research work in both inland and coastal areas aimed at maximizing on a sustainable basis, fish production in the country. The Kisumu research station will deal with problems arising from freshwater fisheries while the Mombasa station will deal with problems of all research matters relating to the Marine Fisheries.
The Kiganjo Station will supply trout fingerlings to coldwater fish farmers while Sagana Station will provide fingerlings to warmwater fish farmers. Both Kiganjo and Sagana will conduct research aimed at improving fish farming techniques on both coldwater and warmwater fish. The Department will receive specialized personnel from the university and from abroad to cater for the professional staff requirements, while 800 staff members will be trained at the newly established Wildlife and Fisheries Training Institute at Naivasha.
(The following is a summary of pertinent material from the Interim Report on Fishery in Somalia, dated January 1985 and prepared by consultants for the Ministry of Fisheries)
Perspective
Despite the limited continental shelf, the estimates of potential production are upward of 180 000 tonnes. This includes some 100 000 tonnes of small pelagics which occur off the northeast coast, whose exploitation would require industrial fishing.
In comparison, during much of the past decade the landings have fluctuated around 10 000 tonnes, reaching 20 000 tonnes in 1984. Of this industrial fishing accounted for about 11 000 tonnes of fish, and much of the 500 tonnes of crustacea. The artisanal sector accounted for about 8 000 tonnes, with about 40 percent being shark.
The industrial fishing operations have been organised under licensing agreements or joint ventures. Recently most of the licensed vessels have been Italian and Japanese. Under the terms of the licenses all the catch is exported, with 25 percent in cash or kind being paid to the Somali government. (During 1985 the involvement of foreign vessels was largely ceased, but recommenced in 1986).
The artisanal fishery is restricted to coastal waters, utilising traditional wooden vessels, many of which have exceeded their working life, as well as locally produced glass reinforced plastic boats. Of a total fleet of 630 motorised boats, only 300 were operational in 1982.
Most of the fishermen belong to 18 cooperatives situated along the north and east coasts, and which are suppllied with vessels, accessories and stores by the government. In addition there are re-settlement centres administered by the autonomous Coastal Development Agency, which is under the authority of the Ministry of Fisheries. This agency re-settled 14 000 former nomads, most of them severely affected by the drought of 1973-75, and trained them in fishing techniques.
Despite these efforts, a recent estimate puts the numbers engaged in fisheries as 3 500 persons. The number is expected to decline further, in the absence of corrective measures. At present, not only fishermen but all population groups in most coastal settlements are declining, due to the relatively poor living conditions available, and economic prospects, which encourage emigration to the larger towns and cities.
The fishing equipment in use (boats, nets, etc) are commonly inappropriate and /or in poor condition, particularly for the artisanal sub-sector. This derives from a number of factors including over-capitalisation, inadequate availability of boats and other equipment, and lack of accountability in the provision of these items to the fishermen with the resultant abuse of materials.
In most of the settlements there are no ice plants or cool storage facilities, nor are communications adequate to allow rapid transport and distribution of the catches away from the landing sites. Consequently a large proportion of the production is sun dried or processed into "haneed", resulting in considerable wastage of catch and inferior prices for the produce.
Outside Mogadishu and a few minor ports, there are almost no facilities, such as jetties at the landing sites. The maintenance of boats and equipment is generally poor in the absence or shortage of mechanics, workshops, and spare parts. Their is no marine transport system, and the road infrastructure for most of the coastal communities is usually inadequate or non-existent.
As a consequence of the inadequacy or absence of basic services for the provision of electricity, fuel, water, education, and medical treatment, the quality of life in most coastal communities is poor, leading to continued outward migration and economic decline.
National Development Plan (1982-1986)
This plan continues to attach high priority to the development of the fisheries sector, and sets an annual growth target of 23 percent in production, with most of the increase to be exported due to the low demand on the domestic market.
The approach encompassed within the plan is to alleviate the constraints that have hindered growth in the past. Priority is given to the implementation of projects to provide the basic requirements of the industry. The projects which have been commenced, or for which finance is available include
- strengthening the Ministry of Fisheries through the provision of expatriate technical assistance- the establishment of cold storage and transport facilities at Berbera
- upgrading fishermen's skills, and commodity assistance for the improvement of fish handling and mechanical repairs at Berbera, and adjacent cooperatives along the northwest coast
- asistance with managing the fish processing plant at Kismayo, provision of two 22 metre long carrier vessels, expansion of the Kismayo premises and facilities for fish processing and storage, and the provision of modest fish handling and preservation facilities at Kulmis, Bur Gaaba, and Ras Kiyamboni.
- provision of an ice plant, collection and storage facilities on the east coast between Mogadishu and Ras Kiyamboni
- provision of modern retail fish outlets in Mogadishu, chill rooms and ice making facilities at adjacent fisheries cooperatives, and publicity towards increasing the national consumption of fish
- continue the provision of managerial assistance at the government owned boatyard producing glass reinforced plastic boats
In addition to these, and other project proposals for which financial support is still pending, the 1982-1986 plan incorporated a general strategy which includes
- a minimum price rather than a fixed price system for selling fish- private ownership of vessels and gear (encouraging results were achieved from a pilot project involving the sale of 40 government owned boats into private ownership)
- liberalization of trade in fish and fish products
- cessation of the practice of supplying boats, gear and services to fishermen without charge
- re-directing a portion of the export and royalty generated foreign exchange in the sector for the purchase of the necessary spare parts and equipment
- institutional reform in the fisheries sector
- upgrading of skills at all levels through on-the-job and formal training in Somalia and overseas
Policy Recommendations for the Future
Further action should be organised at two levels:
(1) Comprehensive development of the coastal areas as a whole
The living conditions in coastal areas should be drastically improved and social development ensured, in order to stem the continuing outward migration and to encourage a return to the coastal communities.
Attractive employment would be an essential component of such a development In addition to fishing and fish related activities, this could include tourism, manufacturing, services and infrastructure to ensure a balanced economy.
Services and infrastructure would be seen as not just the pre-requisite for employment, but also for creating satisfactory living conditions. Particular attention would be given to Education, health, food supply water, electricity, markets, fuel supply, sea and land transport.
Development could be facilitated by the creation of seven fishery development zones (adjacent to each of Kismayo, Mogadishu, Eyl, Bargal, Bolimog, Lasqoray, and Berbera)
- to simplify resource exploitation and the input of investment
- to facilitate the integrated development of the coastal communities
- to centralise the fishery business and assist in the permanent flow of information
- to mark fishing zones for the companies and organisations involved
- to make efficient use of technology, transport, fuel, food, and all other services
- to maintain the security and control of sea resources
(2) Specific development of the fisheries sector
Priority should be directed towards coastal rather than offshore industrial fisheries, due to the much greater investment involved in the latter, and the greater potential benefit for coastal development derived from the former.
The activities for which further study and investment would be necessary are as follows
- fishing boats (suitable size, design and number)
- fishing equipment (regular supply and standardisation)
- spares and maintenance (parts supply, workshops, well trained staff)
- training (skill development for fishermen and all others in the industry!
- shore facilities (jetties, (refrigerated) stores, processing works, fuel stores, etc)
- transport (roads, refrigerated vehicles, cargo boats)
- organisation (marketing, cooperatives, regulations, administration, etc)
- research (resource inventory, on-going monitoring of stocks, methods)
(The following are extracts from The Management of Marine Resources for National Development (The Seychelles' Government Fishing Policy), which was finalised in mid-1986 for general distribution)
1. Introduction
The Seychelles territorial sea and Exclusive Economic Zone (EEZ) extend to some 1,374,000 square kilometers, including significant areas of continental shelf, of which the Mahe plateau alone is 38, 690 square kilometers. Such a large area contains an important quantity and variety of natural resources. This policy paper deals with the ways by which the Government will manage its marine resources.
2. Goals and Objectives of the Fishing Sector
The main objective of resource management is to maximise the benefits from this sector to increase its contribution to national economic, social and nutritional goals. The development of the fishing industry will assist the implementation of the national objective of a more equitable distribution of income. BY generating additional economic activity and thus broadening the country's economic base, it will further enhance the Government's ability to finance its development programme.
The specific objectives of the Fishing Sector are:
i) To Create the Maximum Amount of Work Opportunities
Government will ensure that the fishing industry and other marine resources are developed in such a way as to provide the maximum number of work opportunities. Additional Jobs will be created to increase the local value added by Government implementing projects to process fish and develop new products.
The development of the industry "per se" offers a wide range of potential work opportunities such as boat building, ship repair facilities and bunkering. Government will ensure the development of facilities to take advantage of opportunities for creating additional employment.
ii) To Maximise Foreign Exchange Earnings
Although in 1985, over 120,000 tons of tuna, valued at US dollars 70 M was caught by vessels licensed in Seychelles, only a small percentage of this foreign exchange revenue stayed in the Seychelles. Government will negotiate with foreign vessel operators and/or their representatives to ensure that the maximum amount of revenue is earned. It will also encourage the exportation of demersal fish through the Seychelles Marketing Board and the exploitation of shell fish to import sustitute with the ultimate objective of exporting the product if this is proven to be viable.
The establishment of fish processing facilities and the development of services to the fishing sector will also contribute to increase foreign exchange earnings.
iii) To Create the Optimum Linkages With Other Sectors of the Economy
To ensure that Seychelles derives the maximum economic benefit from its marine resources' steps will be taken to foster linkages with the other sectors of the economy. The greatest potential lies with agriculture where the fishing industry is in a position to supply inputs to and create a demand for products of the agricultural sector. For example, the establishment of a fish processing factory will generate a supply of fish meal and other fish by-products which will be used for animal feed. The development of the fishing sector will in turn create an additional demand for the products of the agricultural sector. Linkages in other areas such as the service sector will also be established. The Government will ensure that advantage is taken of all the potential multiplier effects and opportunities for diversifying the economy.
(v) To Ensure the Stable Development of the Industry
The Government will implement licensing policy geared to maintaining stability and continuity in the industry. To realise this objective, it will diversify the national composition of the foreign fishing fleet. It will further establish the composition and duration of fishing licences to ensure a high degree of commitment on the part of vessel operators. Government will concurrently develop the local capacity for industrial fishing to reduce the Seychelles dependency on foreign fleets. The Seychelles marketing strategy for its export products will also be geared to minimise disturbances through market diversification and long term agreements.
v) To Conserve Marine Resources in Order to Ensure the Long Term Viability of the Industry
Fish is one of the most important sources of protein in the Seychelles. The Government will ensure that this resource is properly managed so that it is not put at risk by excessive or inappropriate methods of exploitation. In view of the migratory nature of tuna and other pelagic species, Government will cooperate with other littoral states of the Indian Ocean and with relevant multilateral organisations to safeguard the long term viability of the industry.
vi) To Establish Mahe as an Important Tuna Centre of the Indian Ocean
Currently, a considerable number of tuna fishing vessels are fishing in the Seychelles EEZ as a result of bilateral and multilateral fishing agreements in force. In addition, other vessels outside the EEZ have occasionally used Port Victoria for transhipment and/or bunkering.
In order to encourage the utilisation of Port Victoria, the Seychelles Government is investing heavily in both the fishing and commercial ports to improve facilities to handle the extra demand of its services. In addition, the Government will encourage participation in the financing of on-shore capital projects by tuna fishing companies to encourage their long-term committment to Port Victoria. In licencing foreign fishing vessels, a policy will be pursued to ensure that all the facilities at Port Victoria are used at their optimum. In order to consolidate Mahe as an important Tuna Centre of the Indian Ocean, the Government will invest in the fish processing industry as well as investigate the possibility of establishing a ship repair yard capable of handling fishing and other vessels of over 500 tons (GRT).
3. Plateau Fishing
The livelihood of fishermen who use labour intensive methods to supply the local market with fish will be safeguarded. Industrial fishing activities will not be allowed to have any undue adverse affects on the local supply of fish. Except for research activities, fishing on and up to five miles beyond the edge of the plateau as defined by the 200 metres isobath and within the territorial limits will be exclusively reserved for locally owned and registered fishing boats.
In order to strengthen traditional fishing, the Government is investing substantially in the development of infrastructures geared specifically to the needs of local fishermen. A special section of the fishing port in Victoria will be set aside for use by the smaller fishing fleet. Hygeinic collection centres will be built for the unloading of fish catches, their grading for marketing purposes' and their preparation for distribution to marketing points all over the island. In addition essential support services will be established at a number of fishing centres established in selected villages around Mahe, Praslin and La Digue.
Various Government schemes are being implemented to provide infrastructural services, central purchase by government of all fish catches at guaranteed and fair prices, regular supplies of ice, incentives for acquisition of fishing gear, marine engines and spare parts, availability of loans on soft terms for investments in the traditional fishing sector.
4. Deep Sea Fishing
The method of fishing currently employed by the tuna purse seiners is highly capital intensive and based on advanced technologies. Further, the structure of ownership and control is not conducive to the transfer of technology and job creation. In its efforts to create the maximum employment from the fishing industry, the Government is investigating methods of exploitation using more appropriate technology. It will also require foreign vessel operators to provide the maximum possible on-the-job training for Seychellois at all levels.
The first step towards increasing Seychellois participation in the deep sea fishing will be the introduction of intermediate sized fishing boats which may be locally built. These will meet a significant proportion of the requirements of the tuna cannery which will be built in Victoria. Concurrently, the Government will investigate other avenues for increasing Seychellois participation in the industry, and the possibility of exploiting other deep sea resources.
5. Resource Management and Research
Seychelles will take the lead in encouraging regional and international support for the creation of a regional Indian Ocean organisation overseeing on a scale and at a level yet to be determined the management of migratory marine resources such as tuna. Such a regional organisation might include as its objectives the free exchange of stock assessment statistics between member countries, and the coordination of stock conservation measures.
In pursuit of this goal, Seychelles will turn to member countries of the Indian Ocean Commission, to other friendly nations, to various UN Organisations (FAO and UNEP), and to any other body sharing an interest in the matter in an effort to catalyse and concert action for the long term benefits of all parties.
Regarding the demersal fishing sector, catch rates appear to indicate that some parts of the Mahe Plateau have attained their optimum level of exploitation. In order to monitor the stocks, the collection of statistics and biological data for stock assessment of demersal species will be reinforced. Also the Government will encourage fishermen to operate in areas that have hitherto been underexploited, through the provision of incentives and technical assistance.
The Government will keep under constant review the effectiveness of small scale fishing methods. At the same time it will seek to develop and introduce more productive and efficient techniques in an effort to increase the earning power of the fishermen. An impetus will be given to the possibility of diversifying artisanal fishery activities from their concentration on the fishing for demersal species to a balanced exploitation of both demersal and pelagic species.
The Government will continue its research work directed towards the development of new types of fishing boats. As far as possible, versatility will be a built in feature of the new generation of fishing boats. The larger boats will be characterised by an increased range of operation, large fish holding capacity, and more comfortable accomodation.
The Government will carry out research on the potential contribution of both marine and freshwater culture to the Seychelles economy. Initial research has indicated that the Seychelles have an excellent potential as a producer of seaweed products. Studies will be carried out on the habitat of some outer islands to ascertain whether conditions exist for the conduct of mariculture projects
6. Licensing
Licensing is the major instrument whereby the government will manage the fishery resources. In the case of the foreign fishing vessels the issue of licences will be dictated mainly by considerations of maximising revenue, but will recognise the need to conserve the resource and protect the marine environment. In the past, agreements have taken several different forms, some requiring lump sum payments, some related to the value of the catch, some containing provision for funding of research, and some a mixture of these.
The Government will pursue a flexible policy, but in issuing licences for foreign vessels and in determining the level of the licence fee, account will be taken of the degree to which the operator shows committment to the future of the Seychelles fishing industry (eg. investment in processing facilities or participation in joint ventures).
The issue of licences will also normally require that the foreign vessels use Victoria as a base of operations in respect of bunkering, trans-shipment, victualling and vessel servicing. Where this is not possible, as in the case of factory ship operations, a separate factory ship licence fee will be required, compensating for the loss of revenues and economic benefits in Victoria.
The main purpose of domestic licensing will be to ensure management consistent with conserving the stock. It will also serve to ensure that safety standards are raised. In future all local licenses will be issued by the Licensing Authority upon the advice of the Seychelles Fishing Authority. The principal licences will be for vessels, with beach seines and fish traps as the only category of fishing gear for which a separate licence will be required. Licences may be withdrawn upon failure to comply with the regulations and other conditions.
7. Investment Policy
In recent years the government has experimented with state participation in small scale fishing operations in parallel with privately-owned fishing enterprises. Government has now concluded that it is desirable that small-scale fishing should be left in private hands with the provision that fishing boats should be owned by the operator or by groups of fishermen organised under a cooperative umbrella.
Government will however continue to actively participate in larger scale fishing operations and fishery-related enterprises requiring substantial capital outlays likely to lie beyond the means of local investors. Government financial participation in such ventures may be on a 100 percent basis, or on a joint venture basis with local or foreign; partners. In key areas considered to be crucial to the fishing industry, the Government will insist on taking a controlling interest of the shareholding.
Private foreign investment on a joint venture basis will be encouraged in enterprises requiring substantial capitalisation and expertise not available to the Government. The Government will give consideration on a case-by-case basis to the offer of investment incentives under one or more of the following forms:
(a) complete or partial exemption from payment of trade tax on machinery, equipment, spare parts and raw materials(b) a corporate tax holiday on terms to be negotiated
(c) free repatriation of capital and remittance abroad of profits and dividends
(d) electric power at preferential rates
(e) availability of sites and, if necessary, buildings with nearby services
(f) exemption from payment of registration fees on land and buildings purchased by new enterprises in the fishery sector
8. Manpower Development Policy
The Government is concerned by the insufficient number of Young people joining the industry. Measures will be taken to improve working conditions and income earning capacities, to motivate school leavers to take up fishing as a career. The Government will also ensure that the education system is geared to provide the appropriate training, in each of fishing, fish processing, and support services to the industry.
Perspective
The Federal Islamic Republic of Comores is presently comprised of three islands, Grande Comore, Anjouan and Moheli. The population of these islands in 1985 was 400,000 people, 48 percent being under 15 Years of age. The least pessimistic projections of population increase place the population by the year 2000 at 600,000 people.
Agriculture produces 40 percent of GNP, estimated in 1985 at US$ 210 per person. Little animal protein is consumed other than fish, so that with an annual per-capita consumption of about 10 kg, nutritional defficiences are likely to increase. In view of the limited resources available, rational exploitation becomes a pressing necessity.
Following the signature of a loan agreement from the African Development Fund in 1979, a semi-public organization was created (SODEPEC - Societe de Developpement des Peches aux Comores), under the control of the "Ministre de Production Animale et de l'Artisanat". Only about 35 percent of the funds of this loan were disbursed, however, and by 1986 SODEPEC was moribund.
In the absence of a fisheries administration, FAO in 1986 provided a Fisheries Adviser (under project TCP/COI/4404), and a consultant mission is expected towards the end of the year, to define a fisheries policy, coordinating the various sources of aid to fisheries.
To date, other than the ADF project' which now requires re-definition, the Comores has received aid from Japan (JICA), in the form of fifty 9 metre boats delivered during 1983. These have had a very positive effect on fish production, allowing fishermen to exploit offshore grounds. In 1984, JICA provided a fishermen's training school with two instructors, and further aid in 1986/87 should provide more boats, engines and possibly ice-making equipment.
Aid is also expected from the European Development Fund, but this is still to be defined.
Policy
National policy priorities are defined as:
- creation of employment;
- nutritional self-sufficiency;
- improvement to the balance of payments deficit.
A consultant l) in 1986, in a report which may form the basis for a future fisheries policy, recommended the creation of a fisheries administration which would collect, codify and update all legislation relative to fisheries in the country and the region; set up a statistica system; and administer and coordinate fisheries activities, including training.
1) Mr. A. LAHFIDI, Administrateur Principal des Affaires Maritimes, Chef de la Division des Relations Interprofessionnelles au Departement des Peches Maritimes du Maroc.
He recommended, furthermore, that SODEPEC be re-activated to channel gear and aid to fishermen, and test the feasibility of cooperative groupings of fishermen. Also that the introduction of new gear and techniques to the 8,000 fishermen should be done through the provision of short courses at the training school. He also recommends that SODEPEC be involved with upgrading and maintaining the fishing fleet. Finally, that the para-statal company SOCOVIA should be entrusted with the collection and distribution of the catch.
Significantly, the consultant saw little future in the motorization of the traditional craft, as a means of encouraging the artisanal fishermen to exploit grounds further offshore. Concerning industrial fishing, the issue of licences to foreign vessels was seen as the most realistic option.
Specific recommendations for support included:
- fishermen's training;
- the provision of landing infrastructure (breakwaters or landing ramps...);
- the provision of fuel supplies, spare parts etc.;
- a structure capable of absorbing temporary catch surpluses;
- a line of credit for fisheries;
- a boatyard for local construction of prototypes and serial production;
- estimation of tuna stocks (by the EEC Regional Tuna Project)
Finally, the report specifically recommends that the Comores not become involved in the acquisition of a vessel for fisheries surveillance, but rather to proceed through bilateral or multilateral licensing agreements providing the necessary safeguards.
(Footnote: In late 1986 the FAO fielded a mission to the Comores which can be expected to be reflected by substantial changes in the policy and planning for that country.)
(The following presents the pertinent material contained in the 'White Paper on the Development of Fisheries and Non-Living Marine Resources' of September 1985 prepared for the Ministry of Agriculture, Fisheries and Natural Resources.)
Perspective
Mauritius has a land surface area of 2 000 km2., of which over 90 percent of the arable land is already developed. In comparison, the Exclusive Economic Zone (EEZ) has a surface area of 1.7 million km2., with various resources which remain largely untapped.
Imports of fish and fish products are relatively high, nearly six thousand tonnes in 1984, although in recent years Mauritius has become a net exporter (in value, not weight) of these items. This has arisen largely from the successful performance of an export oriented tuna fishery, based on distant water fishing from the purse seiner Lady Sushil.
While the long term strategy is to be geared towards development of an industrial deep-sea fishing industry, it is also planned to more efficiently utilise the resources of the other sub-sectors. These include the handline and trawl fisheries on the banks of the Mascerene Ridge, the lagoon and off-lagoon fishery adjacent to the island of Mauritius, and aquaculture. It is recognized that the fisheries resources of the lagoon may already be fully exploited.
Objectives
The medium term (five year) production targets are as described below. These principally reflect the objectives of import substitution and the satisfying of an increase in local demand. The longer term objective is to develop an industrial export oriented fishing industry, capable of earning significant amounts of foreign exchange.
|
|
Present (1985) production |
Production targets |
|
|
|
(tonnes) |
(tonnes) |
|
|
Artisanal fishery |
1 400 |
2 500 |
|
|
Banks fishery |
2 500 |
6 000 |
|
|
Industrial fishing (tuna) |
3 000 |
10 000 |
|
|
Aquaculture |
|
|
|
|
|
freshwater-prawn |
25 |
100 |
|
|
- carp |
5 |
200 |
|
|
marine-barachois |
11 |
50 |
|
Totals |
7 000 |
19 000 |
|
(Note:
-the production target for the banks fishery includes small pelagics from trawling;
- the table does not include the target of 1 125 tonne of marine shrimp from the anticipated commercial follow-up of the mariculture project being funded by the Japan International Cooperation Agency (JICA))
Action Plan (Short Term)
In satisfying the objective of a per capita consumption of 20 kg. per annum, the industry will be expected to considerably improve its marketing techniques and presentation of frozen fish for sale. The present consumption level is 14 kg. per annum.
Feasibility fishing trials are to be conducted, as a contribution towards the development of a pot fishery for deep-sea shrimp, an artisanal fishery for large pelagics (including tuna), both adjacent to the island of Mauritius, and an industrial trawl fishery on the small pelagics presently exploited by east-bloc countries on the banks.
The development of the banks fishery is also to be encouraged, by the provision of incentives for investment in new vessels, access to financial facilities, easing the restrictions on the importation of spare parts and modern fishing gear, and the licensing and control of foreign fishing.
In order to establish closer links between the industry and the activities of the research institutions, both local and overseas, it is proposed to establish a National Fishing Authority. Its role would be to provide the industry with broad planning guidelines, assist with the negotiation of technical and financial assistance, and provide technical support based on research conducted locally and elsewhere. It is not envisaged as being involved itself in commercial fishing. (Subsequently this proposal was dropped, in favour of consolidating the existing entities into a fisheries department type organisation.)
In association with the above it is proposed to have the Albion Fisheries Research Centre (AFC) exert a more dynamic role in assisting the fishing industry. In this task it is already recieving considerable support from the Japan International Cooperation Agency (JICA), the Office de la Recherche Scientifique et Technique Outre Mer (ORSTOM), and FAO.
Regarding artisanal fishing, the main thrust will be to preserve the livelihood of the existing 2 500 fishermen. In addition the fisherman training programme is to be continued with the assistance of the Formation Itinerante de Peche. An important objective of this programme is to encourage fishermen to move further offshore, through upgrading their fishing and boat handling skills.
The further development of aquaculture is to be encouraged. This is to include research towards better utilisation of the barachois (man-made tidal ponds). The culture of the giant freshwater prawn (Macrobrachium rosenbergii) is now undertaken commercially, and production is expected to be substantially increased through the construction of additional ponds. A pilot scale marine hatchery for research into the culture of shallow water shrimp (including Penaeus monodon) is to be constructed with funds from the Japan International Cooperation Agency (JICA). Seaweed culture trials are to be conducted with assistance from the University of Stirling (UK), and also the JICA.
Action Plan (Long Term)
In concert with the objective of further developing the countries involvement with industrial scale exploitation of the deep-sea resources, it is proposed that a second purse seine vessel be deployed in the catching of tunas in distant waters. In addition Mauritius will continue to be substantially involved in the Tuna Research Programme being sponsored by the European Economic community (EEC), and to participate with other countries of the region in collective management of the tuna resources, including the provision of statistics, formulation of management plans, licensing of foreign vessels, enforcement and surveillance.
(The following is largely taken from the reports of the following meeting
- National Seminar on Fisheries, held in June 1983, under the aegis of the Ministry of Agricultural Production and Agrarian Reform;- Colocean 1, a national seminar held in November 1984, under the aegis of the Ministry of Scientific Research and of Technology for Development;
- Conference on the Conservation of Nature for Durable development, held in Madagascar during November 1985.)
Perspective
Madagascar has a coastline of 5 000 km and a continental shelf of 23 000 km2. Recent estimates place the- annual fisheries production at 63 000 tonnes, including some 71 percent from freshwater resources. In 1984 the value of the total catch represented 1.7 percent of the countries' Gross National Product (GNP). About 7 000 tonnes are exported annually, mainly marine shrimps, with a value of US$ 25 million. Fisheries products rank third in importance amongst the export items.
The potential production is believed to be at least 175 000 tonnes, and would represent 5.5 percent of the GNP at present prices. If all were consumed locally, the annual per capita consumption of fish would be raised to 12 kg, and lead to the virtual elimination of the animal protein deficiency-affecting the population at present.
Fisheries Policy
The components within the national policy, having direct relevance to fisheries, have been stated as
(1) To satisfy the nutritional requirements of the population where it is recognised there is a protein deficiency(2) To assist in the generation of foreign currency through the export of products
(3) To assist artisanal fishermen in improving their living standards, while finding the ways and means of integrating their activities in the socio-economic sphere of the country
(Source: Speech by the Secretary General, Ministry of Animal Production, Water and Forests)
Recognised Constraints
The problems constraining fisheries development have been recognised as
- the inadequacy of the administrative structures
- lack of coordination between the administrative entities
- a shortage of qualified personnel within the administrations
- inadequate provision of funds and equipment to the fisheries administrations
- the imprecise nature of basic fisheries statistics
- the absence of a development strategy
Activities
(1) Fisheries Administration
A Directorate of Fisheries and Agriculture was established during 1985, with the assistance of the World Bank and FAO. This has separate divisions for industrial fisheries, artisanal fisheries and aquaculture and extension and statistics. Field staff are also deployed in six provincial fishery services.
The Ministry of Higher Education has been allocated the responsibility of training aquatic biologists for later employment within the fisheries administrations. Assistance to this training programme is being provided by FAO. Some 64 posts requiring staff have been identified. In addition the Centre National de Recherche Oceanographique (within the Ministry of Scientific Research has been charged with postgraduate training and research.
The other entities having interest in fisheries include the Ministries of Finance, Commerce' Transport, and Population, as well as the Trawling Commission. Adequate coordination between all of these is regarded as essential.
Priority is now being focused on re-organising the fisheries administration by more adequately defining the role, function and needs of the provincial services, and to set up liaison mechanisms with other agencies. Also, attention will be given to more adequate in-service training for field staff, setting up a fisheries statistics system to include the collection, analysis, and interpretation of these data, and to prepare a fisheries development plan. Assistance in this latter task will be provided by FAO, and follow the conduct of a technico-economic evaluation of the fisheries sector.
(2) Fisheries Development
The main lines of action that have been recommended are
- to finalise the application of the Exclusive Economic Zone (EEZ), including the negotiation of boundaries with neighboring countries, involving the principle of "Grey Zones" in the case of disputed sovereignty- to assist in the development of the traditional fisheries, by the creation of small gear manufacturing units, and of companies or cooperatives for the collection and marketing of the catches, the promotion of fishing for mangrove crabs, and the collection and export of the catches from the "valakiras" (large in-situ fish wiers)
- to promote the collection and utilisation of the fish by-catch from the shrimp trawlers, estimated to be over 20 000 tonne annually, and which is now mostly discarded at sea
- to take Urgent action to reduce the economic over-exploitation of the shrimp stocks, by encouraging the operators to fish the more distant grounds (south of St. Andre), and to exploit other species such as deep-sea shrimp, lobsters and crabs, as in Mozambique
- to establish a credit scheme for encouraging the traditional and artisanal fisheries
- to establish consultative committees as a means of improving the communication between the administration and the industry
- to promote quality control in fisheries products
- pending positive results from the Regional Tuna Project, which might allow for national or joint venture exploitation of the tuna stocks, to take the necessary steps towards the issuance of licenses to foreign tuna fishing vessels, and to encourage the use of Antsiranana harbour for the transhipment of catches and the servicing of the fleet.
The policy and planning statements presented here, all have as common objectives, the full utilisation of the fisheries resources (without over-exploitation) in a way which provides maximum national benefit. In general they give emphasis to the development of the artisanal and small-scale fisheries. This is in large part a recognition of the need to improve the living conditions in the coastal communities, and in so doing reverse the population shift towards the urban centres.
The traditional approach has been to provide better opportunities for marketing the catches, adequate support facilities (such as repairs workshops, cold storages, ice making plants, and extension services), and supplies of gear and fuels. In some cases, as with the formation of the Combinados Pesqueros in Mozambique, a broader range of assistance is being provided. This may include the provision of improved medical and educational services, community infra-structure, and comodities (foodstuffs, clothing, electricals, etc) available for purchase.
None of the statements refer specifically to the role of women in fisheries. At present within the region, the participation of women in fisheries or related activities is low. Notwithstanding, there is a growing concern amongst the governments and aid organisations, and it should be expected that future fisheries development plans within the coastal communities will include encouragements towards greater participation by the women.
While most countries have included aquaculture within their policy and planning statements, this is an aspect of development still largely in its infancy. Commercial mariculture which includes a substantial involvement of the local fishermen, much as in providing 'seed' shrimps for growing in ponds' is likely to be highly beneficial for the coastal communities. Pilot projects to investigate the viability of shallow-water shrimp farming are being undertaken in several of the countries (Kenya and Mauritius) and are considered for most of the others.
Adequate utilisation of the offshore resources is of considerable concern to all the countries. Those with substantial offshore fisheries at present are Mozambique (mainly for crustaceans), Somalia (fish and deep-sea lobster), and the Seychelles Mauritius and Madagascar (tunas). In respect to all of these the exploitation is largely being undertaken by foreigners, usually through licensing rather than with joint venture agreements. Apart from seeking to maximise the benefits accruing locally from this foreign participation, the countries are actively investigating ways to increase local participation (including shore based investments such as in harbours, canneries and cold storages, etc.)
One of the constraints to local participation by many of the countries, at least by the private sector' is the lack of sufficient foreign currency. This is a problem affecting most sub-sectors, as generally fishing gears, engines and spare parts must be imported. Also in some countries there is no local capacity to build vessels, other than small vessels of the traditional types. While not specifically mentioned in any of the statements, the resolution of the foreign currency problem, will continue to require assistance from the aid organisations. The periodic government controlled auctioning of foreign currency, commenced recently in Somalia, is interesting in this context.
As mentioned in the introduction, there has so far been little progress towards establishing a substantial extent of policy and planning cooperation/coordination within the region. It is not surprising that the countries have given first priority to fisheries management and development in the national context. Regional approaches, however, can be expected to become more common, following the establishment of the purse seine fishery for tuna, and it is comforting to note the existence of at least two regional entities (the IOFC Commitee for the Development and Management of Fisheries in the Southwest Indian Ocean, and the Indian Ocean Commission) able to provide a forum for the consideration of regional matters.