FAO/UNDP PROJECT UGA/87/007
FISHIN NOTES AND RECORDS

FIELD DOCUMENT NO. 4 RESOURCE STEWARDSHIP AND MULTIPLE USE INTERESTS FOR A FISHERIES IN FLUX: OBSERVATIONS ON LAKE VICTORIA-UGANDA TABLE OF CONTENTS

Edited By

J.Eric Reynolds

The conclusions and recommendations given in this and other reports in the UGA/87/007 Fisheries Statistics and Information Systems (FISHIN') series are those considered appropriate at the time of preparation. They may be modified in the light of further knowledge gained at subsequent stages of the Project. The designations employed and the presentation of material in this publication do not imply the expression of any opinion on the part of the United Nations Development Programme nor 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 determination of its frontiers or boundaries.

ACKNOWLEDGEMENTS

This Field Document is based on two papers specifically addressing policy and planning issues which were presented at the National Seminar on the Management of the Fisheries of Lake Victoria held 6–8 August 1991 at Jinja, Uganda. The Seminar was co-sponsored by the FAO/UNDP Regional Project for Inland Fisheries Planning (IFIP -- RAF/87/099) and the FAO/UNDP Fisheries Statistics and Information Systems (FISHIN') Project (UGA/87/007). All of the papers have been previously issued in the form in which they were presented to the Seminar under the cover of Occasional Paper No. 5 of the FISHIN Notes & Records series.

The preparation of draft management plans for Lakes Victoria and Lakes Edward/George comprised one of the objectives of FISHIN' Project's work programme. Despite time constraints and the press of other activities on the rather ambitious agenda, substantial contributions towards planning for these fisheries were achieved. The western lakes of Edward and George have been covered in several earlier Project publications. Considering the importance of the Victoria fisheries it was decided to re-issue the two major policy and planning papers presented at the National Seminar in edited and emended form.

Paper I on industrial processing investment and development was prepared by Drs. William M. Ssali (Officer-in-Charge, Fish Technology Laboratory, UFD - Entebbe) and John-Eric Reynolds (Project Socio-Economic Advisor), with the assistance of Mr. Richard Ogutu-Ohwayo (UFFRO). Paper II on management issues, options, and strategies was prepared as the final summary and synthesis discussion paper of the Seminar by Drs. Tim Twongo (UFFRO) and John-Eric Reynolds with the assistance of Mr. Peter Mwene-Beyanga (Fisheries Officer, UFD - Entebbe). Reynolds.

Several colleagues at the Uganda Freshwater Fisheries Research Organisation (UFFRO) and the Uganda Fisheries Department (FISHIN Project) read through and made suggestions on the initial manuscripts of these papers. Their contributions are gratefully acknowledged. Sincere thanks also go to Ms Florence Kakayi of UFFRO who helped type the manuscript of Paper II.

-- E.J. Coenen
CTA

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This electronic document has been scanned using optical character recognition (OCR) software. FAO declines all responsibility for any discrepancies that may exist between the present document and its original printed version.

TABLE OF CONTENTS

LIST OF ABBREVIATIONS

CURRENCY EXCHANGE RATES

EXECUTIVE SUMMARY

I.   INDUSTRIAL PROCESSING INVESTMENT AND DEVELOPMENT FOR THE FISHERIES OF LAKE VICTORIA: PRESENT AND FUTURE CONCERNS

1.   INTRODUCTION

2.   BACKGROUND: THE EARLY FISHERIES REGIME

2.1   Subsistence and Artisanal Fishing
2.2   Traditional Handling, Processing, and Marketing
2.3   Mechanised/Industrial Fishing
2.4   Industrial Handling, Processing, and Marketing

2.4.1   Early developments
2.4.2   Western Uganda fish processing plants
2.4.3   Tilapia fillet plants in Kampala

3.   RECENT DEVELOPMENTS: THE NILE PERCH SUCCESSION

3.1   Trends in Catch Levels and Species Composition
3.2   New Industrial/Mechanised Fishing Ventures
3.3   New Industrial Handling and Processing Ventures

4.   TECHNO-ENVIRONMENTAL IMPLICATIONS

4.1   Increased Demands on Fish Stocks
4.2   Water Pollution
4.3   Fish Quality and Reduction of Post-Harvest Losses
4.4   Conservation of Forests

5.   SOCIO-ECONOMIC IMPLICATIONS

5.1   Generation of Enhanced Earnings
5.2   Generation of Employment
5.3   Contribution to Forex Earnings
5.4   Effect on Nutritional Welfare

6.   CONCLUSION

6.1   Relations Between Fisheries Agencies and Interests

6.1.1   The Fisheries Department
6.1.2   Research institutions
6.1.3   The user sector

6.2   Other Outstanding Issues

6.2.1   Proliferation of processing plants
6.2.2   “Undocumented” export of fish
6.2.3   Towards sectoral development

II.   MANAGEMENT ISSUES, OPTIONS, AND STRATEGIES FOR LAKE VICTORIA FISHERIES

1.   INTRODUCTION

2.   HISTORICAL BACKGROUND

2.1   The Origins of Scientific Management
2.2   Development of Fisheries Research
2.3   Trends in Fisheries Administration and Exploitation

3.   CURRENT MANAGEMENT ISSUES

3.1   Issues Related to the Resource Base

3.1.1   The aquatic environment
3.1.2   The fish resources

3.2   Fisheries Exploitation Issues

3.2.1   Fisherfolk, fishing gear, and equipment
3.2.2   Fish processing and marketing
3.2.3   Fish export

4.   THE MANAGEMENT PROCESS: OPTIONS AND STRATEGIES

4.1   The Policy Context
4.2   The Legal Context
4.3   The Institutional Context

4.3.1   The agencies and activities of management
4.3.2   Co-ordination and consultation between agencies
4.3.3   Funding arrangements
4.3.4   Productivity
4.3.5   The institutional context: proposals

4.4   The Regional Context

5.   CONCLUSION

REFERENCES CITED

APPENDIX 1.   INDUSTRIAL PROCESSING PLANT SURVEY FORM

APPENDIX 2.   FIGURES

APPENDIX 3.   PAPERS PRESENTED AT THE UGANDA NATIONAL SEMINAR ON THE MANAGEMENT OF THE FISHERIES OF LAKE VICTORIA

LIST OF FIGURES

1.   LENGTH FREQUENCY DISTRIBUTION OF NILE PERCH CAUGHT BY GILLNETS OF DIFFERENT MESH SIZES

2.   LENGTH FREQUENCY DISTRIBUTION OF NILE TILAPIA CAUGHT BY GILLNETS OF DIFFERENT MESH SIZES

3.   LENGTH FREQUENCY DISTRIBUTION OF MUKENE RETAINED IN COMMERCIAL SEINE NETS

ABBREVIATIONS USED

APPROXIMATE FOREX BUREAUX CURRENCY EXCHANGE RATES

EFFECTIVE SEPTEMBER 1991:

1 USD = UShs 960

EXECUTIVE SUMMARY

1. This report, the fourth Field Document of the FISHIN Notes and Records series, is comprised of two papers specifically relating to policy and planning issues which were presented at the Uganda National Seminar on the Management of the Fisheries of Lake Victoria held in Jinja during August 1991.

Industrial Processing Investment and Development

2. The first paper deals with the growth industrial processing and its techno-environmental and socio-economic implications. A review is given of developments in the Lake Victoria-Uganda fishery before and after the establishment of Nile perch. It is argued that the new processing plants are both positive and negative in their effects.

3. They obviously create a situation of increased demand for fish and this contributes to the risk of overexploitation of available stocks and spiralling prices for local consumers. By their very nature they are also potential sources of serious water pollution.

4. On the positive side the plants are promoting better fish handling practices and thus the reduction of post-harvest losses. Industrial processing also does not entail the high rates of fuelwood use associated with traditional smoking practices. The plants are furthermore helping local fishing operators to gain more income, providing employment both directly and indirectly to large numbers of people, and contributing to Uganda's forex earnings.

5. Several proposals are set forth for averting or minimising the negative impacts and consolidating the positive developments linked with the growth in industrial fish processing plants. Amongst other things, it is recommended that better working relationships be cultivated between the different agencies and interests that are involved in the fisheries. Particular emphasis needs to be given to research and monitoring capabilities. Product development activities need to be focussed on the use of alternative aquatic resources.

6. It is suggested that a permanent body be set up to deal with applications for industrial exploitation of the Lake's resources. There is at present no systematic mechanism in place for monitoring and co-ordinating developments in the industrial sector, nor for seeking ways and means of avoiding the multiple problems which rapid overdevelopment of plant capacity is bound to entail.

7. The large volume of “undocumented” export in fish across the border to Kenya is basically driven by price appeal and cannot be easily tackled. Several complementary measures will have to be taken including the use of better incentive packages by Uganda-based buyers and enhanced commitment by the authorities to fishing community development.

8. One way of fostering more effective community development and a better research establishment could be through the operation of a “National Fisheries Development Fund,” fed from part of the revenue collected by local taxing authorities as well as industry levies and administered by a Board of Trustees drawn from both the public and private sectors.

Management Issues, Options, and Strategies

9. The second paper is more broadly concerned with policy and planning issues for Lake Victoria and essays a review of past developments, current circumstances, and future options. Management is discussed as a process involving a number of interacting components -- administration, research, extension, and user interests. Management options and strategies are considered and recommendations made in terms of the contexts of policy, legal regulation, institutional arrangements, and the wider lacustrine region.

10. It is now generally believed that the Lake Victoria environment is in a state of ecological flux owing to a combination of factors. Overfishing, the introduction of non-indigenous fish species, and the invasion of water hyacinth are inducing such drastic changes that the entire limnology and fisheries of the Lake now need to be reassessed.

11. The water hyacinth problem looms as a particularly dangerous menace and steps to curb its spread and eventually control or eliminate its presence should now be given the highest possible priority.

12. Available knowledge on the biology and ecology of the three main fish species -- Nile perch, Nile tilapia, and Rastrineobola argentea (mukene) -- is insufficient for long term management planning, and research and stock assessment work must be vigorously and comprehensively pursued.

13. In the meantime, great care must be taken to avoid the danger of overexploitation and the dissipation of the prodigious benefits that have accrued under the new fisheries regime.

14. Also, there is an urgent need to pursue research and development efforts aimed at establishing alternative ways to ensure continuity and growth of the country's fisheries production base. In this regard, attention should be paid to the following possible options: the creation of aquatic protected reserve areas or “parks”; the use of “enhanced production systems” such as artificial reefs and pen culture in protected bays; the promotion of a viable aquaculture sector; and the utilisation of non-traditional aquatic resources such as shrimps, molluscs, and lake flies.

15. Government fisheries policy in the context of rapidly changing circumstances needs to be updated. Given the various developments and threats to the future well-being of the Lake Victoria fisheries and the local and commercial interests who depend upon them for sustenance and profit, it is high time that more concrete and clear-cut policy measures be formulated.

16. The new measures should include a ban on any further expansion of trawling activities in the Uganda sector and diversion of curent operations to strictly specified zones. They should also include a moratorium on the opening of any new industrial plant capacity and some sort of understanding about export levels so as not to undermine domestic supplies.

17. In order to promote sustained resource use and counter the present tendencies towards recruitment overfishing in the artisanal sector, serious and meaningful attention must be given to: extension/education campaigns within fisherfolk communities; an overhaul of the legal framework through which management is supposed to be effected; and the creditable enforcement of existing legal provisions and any new ones deemed appropriate to create.

18. It is important for policy formulation and review to be put on a more consultative and consensual footing, such that important inputs from researchers and resource users, as well as administrators be formally accomodated. One mechanism for ensuring the formal accomodation of all agencies and parties with an interest in the management process could be a “National Fisheries Council” or “National Fisheries Policy Review Committee” type of arrangement, constituted as a standing body with a remit to meet on, say, an annual basis. Representives of the various fisheries interests would devote such occasions to a review of the state of the industry and to formulate such major policy and planning decisions as are warranted by developments.

19. Support should be given to the move to have all fisheries researchers, whether UFFRO- or UFD-based, report to the Secretary for Research under the new MAAIF structure, in order to make more effective use of research staff establishments, inputs, and activities.

20. More frequent direct contact between fisheries personnel in UFFRO and UFD should also be encouraged through holding regular workshops and organising a newsletter type of publication.

21. In terms of funding arrangements, the national fisheries authorities should be mounting a far stronger case for larger allocations from Government, in proportion to the real contributions that the industry is making to the national economy.

22. Loans or grants from outside donor agencies for the support of fisheries research and development projects should be negotiated in such a way that the projects they support are self-sufficient in terms of cash, leaving the recipient government to contribute only in kind, thus avoiding the almost inevitable delays that dependence on host country funds involves.

23. An increase in revenue for direct support of fisheries institutions and fisheries-related infrastructure development should be sought through raising fees for licensing and market dues. Consideration should also be given to possibilities for raising modest amounts of revenue from the sports fishery. A system could be elaborated through which the additional revenue could be more readily accessible at the district level for its intended purposes.

24. More adequate funding for fisheries research could be secured through devising a levy arrangement with the fish export sector.

25. For enhanced management productivity, measures that should be implemented include separation of the functions of fisheries law enforcement and fisheries extension as conducted by field officers. Also needed is a renewed dedication to the provision of an effective fisheries extension service as well as a strengthening of this service in the administrative hierarchy of the UFD and through courses at the Fisheries Training Institute.

26. For better staff performance, the Regional and District levels of administration should be invested with greater authority. This move would shorten lines of communication, foster more initiative among out-posted staff, and reduce delay in implementing administrative measures.

27. Far higher levels of support in terms of work-related allowances and opportunities for career development/training courses, and in terms of backstopping by supervisory staff, need to be provided to personnel posted in the field.

28. Ways and means should be found for paring back superfluous staff within the fisheries administrative hiararchy, using as criteria job performance and dedication to duty. At the same time, efforts should be expedited to correct the inadequate deployment of staff who are currently unable to fill the posts for which they are intended.

29. Uganda fisheries agencies, in seeking closer co-ordination and collaboration between their own policy-making, research, administration, and extension activities, should at the same time seek to harmonise such activities with those of the other states riparian to Lake Victoria.

30. As a shared resource base the fisheries of Lake Victoria clearly depend on close co-operation between the three states for their maintenance and future development. This co-operaton can best be achieved through full commitment to and participation in the CIFA Sub-Committee for the Lake and equally to the other projects now being implemented to foster regional orientations towards management of the resource.