REVERSING ENVIRONMENTAL DEGRADATION TRENDS Policy Instruments for Fisheries Management and the Concept of Fisheries Refugia Christopher Paterson, UNEP/GEF South China Sea Project
REVERSING ENVIRONMENTAL DEGRADATION TRENDS Session Comprised of Four (4) Components: 1. Background to the Fisheries Refugia Activity of the UNEP/GEF South China Sea Project and Achievements to Date 2. Practical Fisheries Management Exercise on Policy Instruments 3. Review of the Fisheries Refugia Concept 4. Compare and Contrast the Fisheries Refugia Concept and Marine Protected Areas Supporting Materials: Note on the Establishment of a Regional System of Fisheries Refugia and Practical Fisheries Management Exercise
REVERSING ENVIRONMENTAL DEGRADATION TRENDS Background Emerging need to manage fisheries and aquaculture in the context of ecosystems and broader initiatives for marine management Several global initiatives have been promoted as mechanisms for integrating fisheries and aquaculture into broader marine management A wide gulf continues to exist between fisheries and environment sectors in Asia Environment initiatives have been promoted in terms of achieving the state of fisheries, but have often not involved mechanisms to ensure the effective integration of fisheries considerations Fisheries ministries and departments are focused on improving the fishery situation in face of high community dependence and participation in smallscale fisheries Need for the development of regional experience in building partnerships and enhancing communication between fisheries and environment sectors
REVERSING ENVIRONMENTAL DEGRADATION TRENDS Emerging Policy Challenge Ensuring the effective inclusion of fisheries issues into broader initiatives for marine management is an emerging policy challenge Role of multi-lateral, inter-governmental projects The UNEP/GEF South China Sea Projects is working to develop regional capacity to meet this challenge by: (a) improving the understanding amongst fishing communities, managers, and policy makers of ecosystem and fishery linkages, and (b) building the capacity of both fisheries and environment ministries and departments to ensure that issues facing the fisheries sector are integrated into overall marine management frameworks.
REVERSING ENVIRONMENTAL DEGRADATION TRENDS PARTICIPATING COUNTRIES CAMBODIA, CHINA, INDONESIA, MALAYSIA, PHILIPPINES, THAILAND, VIET NAM FOCAL MINISTRIES ARE MINISTRIES OF ENVIRONMENT 12 GOVERNMENT DEPARTMENTS, 14 UNIVERSITIES AND RESEARCH INSTITUTES AND ONE NGO ENGAGED AS SPECIALISED EXECUTING AGENCIES MORE THAN 100 ORGANISATIONS DIRECTLY INVOLVED IN PROJECT IMPLEMENTATION, MORE THAN 400 INDIRECTLY INVOLVED
REVERSING ENVIRONMENTAL DEGRADATION TRENDS SOUTH CHINA SEA PROJECT COMPONENTS HABITAT DEGRADATION AND LOSS (Mangrove, Coral Reefs, Seagrass, Coastal Wetlands) OVER-EXPLOITATION OF FISHERIES IN THE GULF OF THAILAND LAND-BASED POLLUTION REGIONAL CO-ORDINATION OVERALL GOAL: to create an environment at the regional level, in which collaboration and partnership in addressing environmental problems of the South China Sea, between all stakeholders, and at all levels is fostered and encouraged; and to enhance the capacity of the participating governments to integrate environmental considerations into national development planning
REVERSING ENVIRONMENTAL DEGRADATION TRENDS Developing a Mechanism for Integrating Fisheries and Habitat Management: the Fisheries Refugia Approach The UNEP/GEF Regional Working Group on Fisheries considered that the concepts used to develop any mechanism should: Focus on fish life-cycle and critical habitat linkages, Be easy for fishing communities, local government officials, and provincial level fisheries managers to relate to, and Provide a suitable platform for the fisheries sector in best representing fisheries issues in fora relating to multiple-use marine management. Regional Working Group on Fisheries Definition of Fisheries Refugia: A spatially and geographically defined, marine or coastal area in which specific management measures are applied to sustain important species [fisheries resources] during critical stages of their lifecycle, for their sustainable use.
REVERSING ENVIRONMENTAL DEGRADATION TRENDS Fishing and the Loss of Marine Habitats and Biodiversity Regional consensus that fisheries habitats play a critical role in the maintenance of fisheries production, livelihoods, and food security Estimated decadal rates of loss of fisheries habitats in the South China Sea are high: seagrass (30%), mangroves (16%), and coral reefs (16%) Fishing identified as a key factor in the continued loss of marine habitats and biodiversity in the South China Sea and Gulf of Thailand Key characteristics of Southeast Asian fisheries contributing to loss: over-capitalisation and over-exploitation, large numbers of small scale craft and high level community dependence on fish for food and income, excessively high fishing effort in most inshore areas, and widespread use of destructive fishing gear and practices.
Need for Improved Management of Fish Stock and Habitat Linkages The RWG-F identified an urgent need for a regional initiative that fosters improved management of critical fish stocks and habitat linkages It was noted by the RWG-F that: REVERSING ENVIRONMENTAL DEGRADATION TRENDS Past environment initiatives, such as the development of MPA systems, have been promoted in terms of benefits to fisheries, but have not effectively integrated fisheries issues into overall planning Sites for marine habitat protection (such as MPAs) have been based on biodiversity rather than fisheries considerations and have had little demonstrable benefit to fish stocks or regional fisheries Fisheries ministries and departments are focused on sustaining yields in face of high community dependence and participation in small-scale fisheries, and have little experience working with the environment sector Prohibition of fishing in any coastal area is a difficult if not futile task
REVERSING ENVIRONMENTAL DEGRADATION TRENDS Developing a Mechanism for Integrated Fisheries and Habitat Management: the Refugia Concept The RWG-F recommended that any mechanism developed should: Focus on maximising the benefit-cost ratio of actions for fishing communities; Promote sustainable use rather than prohibition of fishing; Focus on fish life-cycle and critical habitat linkages; and be Relevant at the fishery level, i.e., should be easily understood by fishing communities, local government officials, and provincial level fisheries managers
REVERSING ENVIRONMENTAL DEGRADATION TRENDS
REVERSING ENVIRONMENTAL DEGRADATION TRENDS Conduct of Country Consultations on the Identification and Establishment of Fisheries Refugia Sites
REVERSING ENVIRONMENTAL DEGRADATION TRENDS Review of Information Collated by the South China Sea Project on Fish Life-Cycle and Critical Habitat Linkages National Reports on Fisheries National Reports on Coral Reefs, Seagrass, Wetlands, Mangroves 142 Habitat Site Characterisations Habitat Demonstration Site Documents The South China Sea Meta- Database
REVERSING ENVIRONMENTAL DEGRADATION TRENDS Review of Information Collected by SEAFDEC on Larval Fish Distribution and Abundance
REVERSING ENVIRONMENTAL DEGRADATION TRENDS Review of Information Collected by SEAFDEC on Larval Fish Distribution and Abundance Sardinella spp.
REVERSING ENVIRONMENTAL DEGRADATION TRENDS Review of Information Collected by SEAFDEC on Larval Fish Distribution and Abundance Scomberomorous spp.
REVERSING ENVIRONMENTAL DEGRADATION TRENDS Candidate Fisheries Refugia Sites - Cambodia
REVERSING ENVIRONMENTAL DEGRADATION TRENDS Candidate Fisheries Refugia Sites - Indonesia
Candidate Fisheries Refugia Sites - Philippines REVERSING ENVIRONMENTAL DEGRADATION TRENDS
Candidate Fisheries Refugia Sites - Thailand REVERSING ENVIRONMENTAL DEGRADATION TRENDS
Candidate Fisheries Refugia Sites Vietnam REVERSING ENVIRONMENTAL DEGRADATION TRENDS
REVERSING ENVIRONMENTAL DEGRADATION TRENDS Outputs and Outcomes to Date Publication of Regional Guidelines on the Use of Fisheries Refugia in Capture Fisheries Management in the ASEAN-SEAFDEC Regional Guidelines for Responsible Fisheries in Southeast Asia, Characterisation of 46 sites in the South China Sea known as critical spawning and nursery areas for species of transboundary significance, Regional agreement on the inclusion of 14 sites in an initial system of fisheries refugia, Prioritisation of an additional nine sites from the remaining 32 sites for which further information is required prior to inclusion in the regional system, Production of a regional fisheries refugia information base, and Inclusion of the refugia concept in National fisheries policies of Cambodia, Indonesia, Philippines.
REVERSING ENVIRONMENTAL DEGRADATION TRENDS Practical Fisheries Management Exercise Christopher Paterson, UNEP/GEF South China Sea Project
Between 1970 and 1992 the world s s decked fishing vessels increased in number from 580 980 to 1 178 160. Estimated average technology coefficients were 0.54 in 1965, 1.0 in 1980 and 2.0 in 1995; i.e. Fishing power is estimated to have increased about four-fold fold since 1965!
Other Users Fisheries Resource Abiotic and Biotic Factors Fisheries Management Infrastructure Buyers Consumers Processors Fishers, Owners and Crews Service and Facility Providers Wholesaler and Distributor Community Fisheries Management is about Managing Fisherfolk
The social and political environment in which this occurs is becoming increasingly more complex! Other Users Fisheries Resource Abiotic and Biotic Factors Fisheries Management Infrastructure Buyers Consumers Processors Fishers, Owners and Crews Service and Facility Providers Wholesaler and Distributor Community
A logistic (S-shaped) curve suggesting the increase in biomass to an upper limit over time.
Yield versus fishing effort.
Greasy Grouper (squares) Mangrove Red Snapper (diamonds)
Greasy Grouper
Mangrove Red Snapper
Greasy Grouper
Mangrove Red Snapper
REVERSING ENVIRONMENTAL DEGRADATION TRENDS Regulating Fishing Mortality - Which Policy Tool? Input (or Effort) Controls Limitations on the amount of fishing effort; restrictions on the number, type and size of fishing vessels or fishing gear, or on the fishing areas or fishing times in a fishery. Output Controls Limitations on the weight of the catch (a quota), or the allowable size, sex, or reproductive condition of individuals in the catch.
REVERSING ENVIRONMENTAL DEGRADATION TRENDS Input (or Effort) Controls Gear regulations on size and number of nets/hooks/pots etc Limits on the number of fishing permits Restrictions on certain harvesting techniques Limits on vessel numbers and characteristics Area and seasonal closures Vessel replacement conditions Output Controls Competitive total allowable catch Vessel catch limits on a per day (or per trip) basis Minimum and maximum fish size regulations Individual catch quotas Individual transferable quotas
Year 1 s Recruitment Variability Sexual Maturity Year 2 s Year 3 s Year 4 s Year 5,6 and 7 s...
Recruitment Variability Sexual Maturity Proportion of size range retained in a hypothetical trawl net
Recruitment Variability Sexual Maturity At MSY the fishery depends significantly on the new recruits entering the fishery.
TAC
Recruitment Variability
Variations in catches reflect the combined effects of: Biological interactions The response to fishing pressure Environmental variability
Biotic and Abiotic Factors Influencing Resource Dynamics Market Conditions Fisheries Management Fishery Goals and Objectives General Economic Trends and Policy Fisher Dynamics TAC Evolving social values and cultural norms Political Processes Multiple Use Aspect of Coastal and Marine Areas National and International Policy Objectives Externalities Management Strategies
REVERSING ENVIRONMENTAL DEGRADATION TRENDS What s the Major Problem With These Policy Instruments? Growing concerns about over-exploitation and over-capacity raise doubts about the effectiveness of input and output management instruments! Why? Because restrictions placed on particular inputs to fishing tend to stimulate fishers to expand their use of other uncontrolled dimensions of fishing effort in order to maintain their catch! Technological Creep - the Creep called Technology
REVERSING ENVIRONMENTAL DEGRADATION TRENDS Technological Creep? A gradual increase in the efficiency of fishing gear and methods, which results in an increase in the effective fishing effort.
The Race for the Fish!
When does the fisher (or management agency) get the signal that fishing effort may be exceeding the theoretical optimum? (a) Cost (b) The Gordon - Schaefer Bioeconomic model.
Do you think that these fishers are racing for the fish?
REVERSING ENVIRONMENTAL DEGRADATION TRENDS Technological Creep? A gradual increase in the efficiency of fishing gear and methods, which results in an increase in the effective fishing effort.
REVERSING ENVIRONMENTAL DEGRADATION TRENDS So what are fisheries refugia and why are we talking about their management? Decadal rates of loss of habitats remain high: seagrass (30%); mangroves (16%); and coral reefs (16%). Fishing identified as a key factor in the continued loss of marine habitats and biodiversity in the South China Sea and Gulf of Thailand. Regional Working Group on Fisheries Definition of Fisheries Refugia: A spatially and geographically defined, marine or coastal area in which specific management measures are applied to sustain important species [fisheries resources] during critical stages of their lifecycle, for their sustainable use.
REVERSING ENVIRONMENTAL DEGRADATION TRENDS So what are fisheries refugia and why are we talking about their management? Intensive, inshore fishing presents numerous threats to coastal habitats and biodiversity in the South China Sea and Gulf of Thailand including: Degradation and loss of habitats and biodiversity caused by intensive use of inappropriate and destructive fishing gear and practices in sensitive habitat areas; Reduced biomass of fish species of transboundary significance caused by growth and recruitment over-fishing resulting from the targeting and capture of juvenile fish, fish in spawning aggregations, and pre-recruits; Changes in marine community structure caused by direct reductions of populations representing specific trophic levels of the community; and Decreased abundance and geographical range of rare and endangered species caused by fishing activities conducted in critical habitat areas
REVERSING ENVIRONMENTAL DEGRADATION TRENDS So what are fisheries refugia and why are we talking about their management? REGIONAL NEED FOR IMPROVED MANAGEMENT OF FISHERIES HABITATS - dilemma for the fisheries and environment sectors is that conservation of habitat does not necessarily result in increased fish stocks and lowering of fishing effort does not necessarily result in improved habitat condition. Are Marine Protected Areas a suitable tool for achieving goals and objectives for habitat and fish stocks? What are the criteria that are typically used for the selection of sites for the establishment of Marine Protected Areas? What evidence exists to suggest that Marine Protected Areas improve the state of fisheries? What are the key constraints in the use of no-take Marine Protected Areas in the South China Sea and the Gulf of Thailand?
REVERSING ENVIRONMENTAL DEGRADATION TRENDS