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Impacts of IUU Fishing in the Asia-Pacific Region
Summary of findings
Initiatives to address IUU Fishing in a global context
Mary Lack Shellack Pty Ltd
Frank Meere and Mary Lack in 2008
On behalf of Asia-Pacific Economic Cooperation (APEC) Fisheries Working Group
Impacts of IUU Fishing in the Asia-Pacific Region
21 member countries
◦ Australia, Brunei Darussalam, Canada, Chile, China, Hong Kong, Indonesia, Japan, South Korea, Malaysia, Mexico, New Zealand, Papua New Guinea, Peru, the Philippines, Russia, Singapore, Taiwan, Thailand, USA, Viet Nam
IUU study involved all of these plus all other countries bordering the Pacific Ocean (48)
APEC
• To improve the understanding of the challenges and obstacles to combating IUU fishing in the region;
and
• To recommend actions to address the problem
Objectives of the study
Questionnaire to elicit views and data on IUU fishing◦ to fisheries agencies in APEC member
economies and intergovernmental and non-governmental organizations
Published studies Grey literature Case Studies Expert input
Approach - 1
Case studies◦ Sulawesi Sea (Palmer and Tsamenyi, 2008)
◦ East Coast of Peninsular Malaysia (SeaResources Management, 2008)
◦ Russian IUU sea urchin fishery (Krause, 2008)
◦ The Regional Plan of Action to promote responsible fishing practices including Combating IUU fishing in the Region (DAFF, IMMAF, 2008)
Approach - 2
• Included each of the three forms of IUU fishing◦ Illegal, unreported and unregulated
• Focused on IUU fishing by foreign vessels within other EEZs and IUU fishing on the high seas
Scope
Data and information is limited and variable in its reliability
Responses to questionnaire not comprehensive
Conclusions may not apply to each and every country and necessarily involve some extrapolation
Analysis was up to 2008
Note that:
Grouped the 48 economies into 4 groups
◦ North Pacific
◦ Southeastern Pacific
◦ Southeast Asia
◦ Western and Central Pacific
Analysis
International Plan of Action to Prevent, Deter and Eliminate Illegal, Unreported and Unregulated Fishing (IPOA-IUU Fishing
What is IUU fishing?
At its broadest occurs where: Vessels operate in violation of the laws of:
◦ A fishery under the jurisdiction of a coastal State◦ High seas fisheries regulated by regional fisheries
bodies (RFBs)
Includes fishing:◦ Without the necessary authorization
◦ In contravention of established rules
Illegal fishing
Refers to fishing activities which have not been reported, or have been misreported, to:
the relevant national authority or a RFB, in contravention of national laws and regulations or the reporting procedures of that body.
Unreported fishing
Generally refers to fishing activities:In the area of an RFB by
unflagged vessels
vessels of flag States not party to the RFB
Can also refer to fishing in areas or for fish stocks where there are no conservation and management measures in place.
Unregulated fishing
Estimates are piecemeal and uncertainCountries generally do not estimate the extent/value of IUU fishing
in their waters
Estimates of IUU fishing in the region from the literature:
• WCPO tuna US$134-400m• Sulawesi Sea US$227m• Indonesia/Philippines US$3b• Papua New Guinea US$26.55m• Asia –Pacific US%5b• Asia –Pacific 3.4-8.1m
tonnes (16% of catch)
Extent of IUU fishing in the Asia-Pacific
Poor governance◦ lack of domestic management arrangements◦ lack of MCS capacity◦ lack of flag State control
in neighbouring EEZs on the high seas
◦ undelimited or disputed boundaries
Worth the risk◦ Perception of low risk of being detected◦ strong demand for seafood products
Socio-economic factors◦ lack of alternative income/employment opportunities◦ Overfished stocks
Usually a combination of these
What drives/enables IUU fishing?
• Most economies in the region (in waters under their jurisdiction)
• On the high seas
• Hot spots◦ Eastern Pacific◦ Northwest Pacific◦ Southeast Asia◦ Pacific Islands
Where is IUU fishing occurring?
• Vessels from countries in the region
• Often vessels from neighboring countries
• Relatively few instances of vessels from outside the region
• Vessels flagged in the region are also involved in IUU fishing in other regions
Who are the IUU fishers?
Whole region Southeast Asia WCPFC
Abalone Tunas etc Tunas
Alaska pollock Reef fish Billfish
Crabs Shark Shark
Reef fish Turtles
Salmon
Seas cucumber
Sea urchins
Sharks
Squid
Tunas
Main IUU species
IUU fishing is a major threat to the region◦ appears to be largely unchecked and low priority
Losses could be as high as 16% of total catch and up to US$5 per year
IUU fishing is a major problem and will get worse if not addressed
Key Conclusions
Main Drivers Main forms of IUU fishing
Main Species Main Obstacles Responses to IUU fishing
Assessed Impact of IUU fishing
Ineffective domestic management Excess
capacity Overfished
stocks Ineffective MCS- Ineffective
flag State control of vessels in adjacent EEZs
Disputed/undelimited boundaries Lack of alternative employment
Domestic illegal Foreign illegal
Commercial Tunas etc Reef fish Shark
Other turtles
Governance: Political will Management
measures Commitment to
international obligations
Sound legislation Lack of MCS
capacity (human and financial)
Litigation failure Broader political sensitivity of some issues (e.g. boundaries) Priority assigned to fisheries issues Lack of a shared vision across adjacent States for improving fisheries management and addressing IUU fishing
Major: RPOA Bilateral
initiatives Other: Bali Plan of
Action Joint MCS
activities Increased MCS
expenditure Alternative
employment programmes
Encouragement of aquaculture
Economic: High impact
Social High impact Environmental High impact on
target stocks High impact on
vulnerable ecosystems
High impact on protected species
Southeast Asia – Key characteristics of IUU fishing
Main Drivers Main forms of IUU fishing
Main Species
Main Obstacles Responses to IUU fishing
Assessed Impact of IUU fishing
Ineffective management of high seas fleets Excess
capacity Overfished
stocks Ineffective MCS Ineffective
flag State control
Perverse incentives specific
access arrangements
development assistance tied to access
Foreign illegal/unreported High seas illegal and unregulated (doughnut holes and high seas)
Main Commercial: Tunas
etc billfish shark
Governance Political will
and financial resources
Sound legislation
Lack of MCS capacity (human and financial)
Litigation failure
Broader political sensitivity of some issues (loss of revenue from access agreements) Lack of subregional cooperation on IUU fishing Lack of coordination/communication across national agencies
MajorDevelopment of coordinated multilateral MCS strategy and response Joint MCS activities Additional management requirements for foreign vessels under access agreements and restrictions on access to adjacent high seas. OtherEnhanced domestic management and MCS arrangements
Economic: High
impact/loss Social High impact Environmental: High impact on
target stocks; Low impact
elsewhere
Western and Central Pacific – Key characteristics of IUU fishing
• Increase political will and public awareness
• Significantly enhanced domestic fisheries management arrangements
• Improved MCS arrangements and additional resources
• Regional MCS initiatives
Summing up – What is needed?
• Improved bilateral and multilateral engagement
• Stronger port and market state measures
• Programs to foster alternative livelihoods
• Catch documentation schemes for high value species
What is needed?
Have analyzed IUU fishing at a regional and sub-regional level
Ultimately, the region’s fisheries operate in a global markets ◦ Access to markets can be affected by national,
regional or international responses to IUU fishing
These responses warrant consideration
IUU fishing is a global problem
Those with one or more of these characteristics◦ High value product◦ High value to weight ratio (i.e. easy to
transport/smuggle)◦ Ease of access (e.g. inshore waters, low level of
capital investment)◦ Wide distribution of stocks◦ Low risk of detection (inadequate surveillance)◦ Inadequate penalties◦ Strong market demand
Species Susceptible to IUU fishing
Can’t change:
The value
Its transportability
Its catchability
Its natural distribution
Addressing IUU fishing
Can change:
The risk of detection
The consequences of detection
Market demand
Access to markets
Addressing IUU fishing
National level
Increased surveillance
Increased enforcement
Adoption of legislation to prevent IUU product entering the country◦ US law that can prohibit imports from nations that are considered not to have
taken appropriate action to precent their vessels engaging in IUU fishing
◦ The European Union measures
only marine fisheries products validated as legal by the relevant flag state or exporting state can be imported to or exported from the EU.
A European black list \covering both IUU vessels and States that turn a blind eye to illegal fishing activities.
Introduction of substantial penalties for EU operators who fish illegally anywhere in the world
Addressing IUU Fishing
US law that can prohibit imports from nations that are considered not to have taken appropriate action to prevent their vessels engaging in IUU fishing
The European Union measures
only marine fisheries products validated as legal by the relevant flag state or exporting state can be imported to or exported from the EU.
A European black list \covering both IUU vessels and States that turn a blind eye to illegal fishing activities.
Introduction of substantial penalties for EU operators who fish illegally anywhere in the world
National measures of the EU and US
Regional Fisheries Bodies
Catch/trade documentation schemes
Vessel lists – black lists and white lists
Trade bans on uncooperative countries
Addressing IUU fishing
Internationally Binding FAO Agreement on Port State
Measures to Prevent, Deter and Eliminate Illegal, Unreported and Unregulated Fishing
Convention on International Trade in Endangered Species of Wild Fauna and Flora (CITES)
Addressing IUU fishing
Industry level Ecolabels
◦Provide primarily environmental information to buyers
◦may or may not be associated with certification
Certification schemes◦assurance that product, process or service
conforms to a standard
◦Can be first, second, or third party certification
Addressing IUU Fishing
Rely on product differentiation in the market ◦ Facilitates consumers exercise choice for legal
and/or sustainable product
◦ May ultimately reduce demand for and price of IUU product
Impact on IUU fishing depends on◦ Chain of custody arrangements
◦ Awareness in the market of IUU fishing
◦ Willingness to boycott uncertified product
Ecolabels and certification
Key component of major initiatives to address IUU fishing
Hence the focus of this workshop◦ To identify strategies and models for effective
partnerships on seafood traceability
Traceability
ability to follow the movement of a food through specified stages of production, processing and distribution (Codex Alimentarius)
Record keeping system that identifies and tracks products from origin to consumption, while providing the ability to quickly trace back products at any point along the supply chain (Roheim, 2007)
What is traceability?
Thank you