Country review: Mauritius

Ismet Jehangeer
Ministry of Fisheries, Mauritius
April 2004

INTRODUCTION

This review of marine capture fisheries management in the Republic of Mauritius is a component of the FAO’s project on the state of the world marine capture fisheries management. The overall goal of the project is to provide an informative reference to any reader including decision-makers, fisheries managers, and stakeholders on overall status of fisheries in given countries/regions including legal and administrative framework, current management strategies and tools employed, options for initiating change etc.

Information for this review were basically obtained from annual reports and other documents of the Ministry of Fisheries, interviews of senior personnel of the management and research services of the same ministry, the FAO questionnaire (which forms an integral part of the project), and the author’s own source and experience. Additional information was provided from the country’s profile and management brief on the FAO website.

Mauritius is a small island of volcanic origin located at latitude 20° South and longitude 57° East at about 680 km East of Madagascar. It covers an area of 1 864 km² and is surrounded by 150 km of fringing coral reef. It has a population of around 1.2 million. Mauritius has an Exclusive Economic Zone of about 1.9 million km² extending from baseline of its outer islands/islets of Rodrigues, St Brandon, Agalega, Chagos Archipelago and Tromelin (Fig.1). However, as is the case with most island states in the tropical areas, it has a limited continental shelf around the islands except for larger shelf areas on certain banks situated far to the north. Fisheries resources/stocks exploited are the island-based artisanal fisheries (principally Mauritius, Rodrigues, St Brandon, and Agalega), the offshore shallow banks of the Mascarene ridge (Nazareth, Saya de Malha, Soudan and Hawkins banks) and the Chagos Archipelago, and the tuna fishery of the Western Indian Ocean. Of late, the deep sea demersal resources of the Southern Indian Ocean are also exploited at depths varying from 800 to 2 000 m by Mauritian trawlers.

From the nutritional and social stand points, fisheries are very important to Mauritius. However, local production (10 000 tonnes in 2002) is not sufficient to cover demand for fish and fish products. The country has to import about 50 percent of its consumption need (some 9 400 tonnes in 2002) in addition to raw materials (about 60 000 tonnes tuna and snoek in 2002) which are used for processing. Fisheries provide employment to around 10 000 persons (full-time fishers and employees in the processing i.e. freezing, salting, smoking and canning and other ancillary services associated with the fisheries sector). Export earnings in 2002 amounted to US$140.7 million (MR 4 billions) basically from canned tuna (the canning factory depending almost entirely on importation of raw material). The value of imports amounted to US$132 million (MR 3.8 billion) during the same year, resulting in a positive balance of trade of US$8.6 million in the fisheries sector. This represents less than one percent contribution of the total GDP. However, the per capita consumption of fish was 20 kg in 2002 (which is higher than an average of 13 kg in developed countries).

POLICY FRAMEWORK

One of the principal fisheries policy document which sets out the broad goal of fisheries management and development for the whole country is the Ten-year Fisheries Development Plan for the Fisheries Sector which was prepared and finalized with the assistance of the FAO/UNDP in 1998.

The overriding conclusion reached in the report was that limited potential exists for further development of marine capture fisheries except for the offshore highly migratory pelagic species such as tuna and swordfish and that emphasis should be placed on:

• Sustainable use of existing resources and protection of the marine environment;

• Maximizing returns from existing fisheries through value addition; and

• Limited and cautious development of under-utilized resources and diversification into aquaculture, where feasible.

The Plan also outlined a budget of MRs 437 million for the implementation of some 126 projects covering eight programmes (in various fields, such as research, marine capture fisheries, marine conservation, institutional reforms) to achieve the proposed management and development recommendations. It was stressed that whilst limited potential for further development exists, a budget of this magnitude was justified since in the absence of environmental and fishery management both the marine coastal environment and fishery resources would be severely degraded. The result would not only be a loss to the economy from decreased fisheries activities, but also serious damage to the tourist industry, which contributed to more than 11 billion rupees (now some 19 billion) to the national economy.

The objectives of the Ministry of Fisheries (as stated at its website), which is responsible for the management and development of fisheries and marine resources are, amongst others:

• to ensure the proper implementation of government policies in respect of fisheries and marine conservation;

• to provide the legal framework and mechanisms for the management and protection of marine living resources;

• to promote responsible fisheries;

• to promote the welfare of fishers;

• to ensure the contribution of fisheries to national socio-economic development;

• to ensure an adequate supply of fish to the population;

• to support and strengthen national research capacity for fisheries development and management and conservation of marine biodiversity; and to ensure that Mauritius cooperates regionally and internationally for the development management and conservation of marine living resources and the promotion of responsible fisheries.

Fisheries in Mauritius have been subject to legislation for more than a century. Regulations were passed in 1886 to ban the sale of certain species of fish due to fish poisoning outbreaks. An ordinance passed in 1918 proclaimed measures relating to inter alia, dimensions of nets, closed fishing seasons, fishing reserves, undersized fish, fish landing stations, and registration of boats. A Fisheries Ordinance was passed in 1948 followed by a Fisheries Act in 1980.

Fishing activities have long been concentrated in the coastal waters and on the fishing banks to the north of Mauritius. However, with the development of the tuna fishery in the Western Indian Ocean and the need to monitor and control fishing activities in line with UNCLOS and Agreements emanating from it and the Code of Conduct for Responsible Fisheries, it had become imperative to revisit the Fisheries Act of 1980 and redraft the legislation to suit the present and future needs in development, management and conservation of fisheries and marine resources. The Fisheries Act was thus reviewed with the assistance of a FAO legal consultant (Christy 1986) and a new Fisheries and Marine Resources Act was passed in 1998, to incorporate some recent international fisheries management norms and mandates, though no specific reference to any international instrument was made in the Act.

LEGAL FRAMEWORK The legal instruments

As mentioned earlier, the basic legal instrument for the management of fisheries in the waters of Mauritius is the Fisheries and Marine resources Act of 1998 (FMRA). The purpose of this Act is to provide for the management, conservation, protection of fisheries and marine resources, and protection of the marine ecosystem in the waters of Mauritius.

The FMRA is divided into ten parts. The most important parts concerning fisheries management are:

• Part II (management of fisheries and marine resources) lays down the basic management functions relating to both coastal and offshore fisheries. Provisions are made for the setting up of Consultative Committees so as to help the minister to maintain a constant dialogue with stakeholders in the fishing industry on matters of general policy relating to fisheries and marine resources. The Section also provides for registration of fishers, collection of basic data on fisheries (catch, effort, area of fishing, species of fish caught, fishing boats) and other biological information. Subsections of this part covers protection of the aquatic ecosystem from pollution, protection of mangroves and the setting up of marine protected areas (MPAs) such as fishing reserves and marine parks and reserves. The Minister may prescribe, through regulations measures for the protection, conservation and management of marine resources including, amongst others, the prohibition of fishing by certain means, in certain areas and or during certain periods, the prohibition of fishing of a specific species, size or gender of fish, conditions to be attached to possession, manufacture, purchase of any gear, schemes for setting and allocation quotas and for limiting entry into all or specified fisheries and the prohibition of any activity likely to disturb the marine ecosystems and habitats.

• Part IV (Control of fishing activities), provides for prohibited fishing methods e.g. with poisonous substances, spears or explosives and artificial light, closed periods for net fishing and oysters fishing, prohibition of underwater fishing and for fishing undersized fish, crabs or lobsters in berried state, turtles, mammals, sale of toxic fish and fish products unfit for human consumption, imposition of closed periods for nets use and restrictions on their operations in passes, and obligations on fishers to land their catch only at prescribed fish landing stations.

• Part VI (licensing): Sub-part A sets out the conditions for licensing, the mode of application for licenses and limitation on the number of licenses to be issued in respect of nets to be used in the lagoon. The policy of Government is to phase out use of net in the lagoons through a voluntary buy-back programme so as to reduce negative environmental impact on the ecosystem.

• Part VI: Sub-part B makes provisions for licenses issued to local and foreign fishing boats (defined as not exceeding 20 m in length) and vessels (exceeding 20m in length). A local boat or vessel needs a fishing license to fish (1) within Mauritian waters or on the continental shelf, (2) in any fishery on the high seas and (3) within the fishing zone of a foreign state. The issue of licenses (in a prescribed form) is subject to a number of conditions; inter alia, the type and method of fishing, areas where fishing is authorized and species and amount of fish to be caught and the period of its validity. A foreign vessel must obtain a licence for fishing within the Mauritius waters. The application for the licence is made to the Minister on a form which is approved by the Permanent Secretary of the Ministry for Fisheries. The licence which is issued in a prescribed form (on terms and conditions determined by the Minister) is also subject to the approval of the Prime Minister, (who is responsible for the EEZ) as per section 37 of the Act. This sub-part also provides for the Government of Mauritius to enter into agreements with other countries, intergovernmental organizations or fishing associations to allow their vessels to fish in Mauritian waters.

• Part VII (Obligations relating to boats and vessels): Owners of fishing boats and vessels should have them registered with the Fisheries Services. Fishing boats should properly display identification marks. Landings of fish catches should be done in Mauritius unless otherwise authorized. Mauritian vessels should abide by a number of conditions relating to safety and insurance of their crew before leaving for a fishing trip. They have to abide by several conditions such as giving information on their catch and effort, production of their logbooks for examination and inspection of their catch on return from fishing campaign. The Permanent secretary may authorize an observer to board and remain on board a vessel.

• Part X (Miscellaneous): The Minister is empowered to make regulations generally for the implementation of the Act.

Although the Act does not explicitly refer to the long-term conservation and sustainable use of fisheries resources, the whole spirit behind the Act rests upon such conservation and use as envisioned in the policy statement of the government. Also, although the legislation does not set up a series of steps or process to be followed for elaboration of fisheries management regulations or plans or for resolutions of conflicts among stakeholders, it has numerous provisions that can be used to set up such processes administratively. Again, though the Fisheries Act does not explicitly require management decisions to be based on information coming from biological analyses or social or economic impacts, production of information on fisheries (section II of the Act) is made mandatory so as to facilitate management decisions.

Among the non-fisheries legislations that impact on fisheries management are:

• The Merchant Shipping Act 1986 which deals with the question of registration of fishing vessels. Under this Act, a ship registered on a foreign register which is bareboat chartered by a citizen of Mauritius or a body corporate qualified to own a Mauritian ship, may have a parallel registration in the Register. This may pose problems associated with flags of convenience if not judiciously used and the responsibility of the state to exercise control over the ship so flagged.

• The Ports Act (1998) which regulates fishing in and around the port and sets ports fees. This has a bearing on the operational cost of the vessels.

• Immigration Act which requires vessels to undergo entry and exit formalities for each fishing trip in the EEZ. This contributes to control and surveillance.

• The Custom Tariff Act provides in its schedules for import and export duties on a range of goods that have direct bearing on running of fishing vessels, export of fish and fish products and transshipment, amongst others.

• Investment laws such as the Investment Promotion Act of 2000 establishing an authority to promote export and investment (in economic sectors including fishing) and the Freeport Act (2001) which enable operators to carry out activities oriented toward export in the free zone with exemptions from payment of custom duties, excise duties and VAT.

• The Food Act (1998) regulates food quality and regulations have been made concerning fish quality, labeling, and frozen food standard.

• The Environment Protection Act (2002): The Act requires the promoter of any undertaking which is likely to affect the environment to apply for an Environment Impact Assessment (EIA) licence from the Department of Environment. Coastal developments, including industrial and tourism infrastructure developments are the major sources of conflict with artisanal fishing activities. Although the Ministry of Environment is responsible for the Government’s global environment policy, the Ministry of Fisheries is one of its enforcement agencies regard the marine environment.

• The Maritime Zones Act (1977) and the Maritime Zones (EEZ) Regulations 1984 which defines the various zones such as the territorial sea, the EEZ and the continental shelf and spell out the sovereignty and sovereign rights of the State of Mauritius with regard to these zones. Approval of the Prime Minister’s Office is required for any activity such as foreign fishing and scientific research and exploration in Mauritian waters. A new Maritime Zones Act has been adopted by the National Assembly recently.

• The National Coast Guard Act (1988): The NCG is responsible for:

  - the enforcement of any laws related to security of the state of Mauritius;

  - the enforcement of any laws relating to protection of the maritime zones;

  - the detection, prevention and suppression of any illegal activity within the maritime zones (including illegal fishing).

Administrative arrangements

(a) National level

The Ministry of Fisheries is the organization responsible for:

1. the formulation and implementation of policies in relation to matters pertaining to fisheries and marine living resources;

2. the development of plans and strategies for management of fisheries and marine conservation;

3. the drafting, subject to vetting of the Attorney General’s Office, of primary and subsidiary legislation related to matters referred to above.

The main administration centre or head office is situated in Port-Louis. The ministry is headed by a Permanent Secretary who reports directly to the minister. A Chief Fisheries Officer, who reports to the former, is responsible for the technical services which carry out the basic functions of the ministry. These are: the Fisheries Research Services operated from the Albion Fisheries Research Centre (AFRC) and the Fisheries Management Service (FMS) at the head office of the Ministry of Fisheries. The latter is basically responsible for monitoring of fisheries and enforcement of the Fisheries and Marine Resources Act which is carried out by the Fisheries Protection Service (FPS). The FPS operates on a 24 basis through 13 Fisheries Posts situated around the mainland of Mauritius with a staff strength of 255 fisheries protection officers. The Fisheries Management Division within the FMS also caters for licensing and monitoring and control of fishing vessels. Staff of this division is also involved jointly with that of the Fisheries Protection Service in vessel inspection and monitoring in the port area. Recently, a new Fisheries Training and Extension Centre (FITEC) was created for the training of fishers (see organigram of the Ministry of Fisheries).

The National Coast Guard (NCG), which is a specialized agency within the Police Force, provides additional assistance for enforcement of national fisheries laws and regulations. The NCG reports to the Prime Minister’s Office (PMO) who is responsible for the EEZ. The NCG operates from a central command station at Port-Louis with 19 field stations, including Rodrigues and the outer islands at all times. It is equipped with a large armed patrol vessel and two smaller vessels capable of patrolling the zone. The NCG also operates two high wing aircraft. Being part of the Police Force, the NCG can mobilize other crafts and vehicles if necessary.

The NCG, therefore, supplements and reinforces the enforcement capacity for the fisheries law and regulations beyond the limits of the territorial sea (in the EEZ) and especially in the distant outer islands.

(b) Regional level

As per the Rodrigues Regional Assembly Act of 2001, the Rodrigues Regional Assembly (RRA) established under this Act is responsible for the formulation and implementation of policy in respect, amongst others, to marine parks and fisheries in the Island of Rodrigues. Though the RRA may pass regulations regarding fisheries, it is mandated to operate in addition to, but not in derogation of any law of the Republic of Mauritius.

STATUS OF FISHERIES IN MAURITIUS

Table 1 provides a summary of the different fisheries exploited in Mauritius.

Artisanal fisheries

Artisanal fishers exploit the fishing grounds in the lagoon and off lagoon beyond the reef barriers on the narrow shelf area around the islands. The multi-species stocks comprise mainly Lethrinus spp., Mugil spp (mullet)., Siganus spp (rabbit fish)., Naso spp. (unicorn fish), Scarus spp.(surgeon fish), Epinephelus spp.(grouper) and Parapenaeus spp.(goatfish), Penaeid shrimps, oysters and octopus are also fished to a lesser extent. The fishers use only traditional fishing such as hooks and lines, basket traps, large nets, gillnets, canard nets and harpoons.

TABLE 1
Summary of fisheries exploited in Mauritius (2002)

Note: 1 US$=MR 29 (2002)

A total of 3 895 artisanal fishers (using some 2 073 boats of 6-7 m in length) in Mauritius and Rodrigues were involved in these fisheries in 2002. The artisanal sector is the main source of fresh fish supply for the local market. The total production from the two largest islands (Mauritius and Rodrigues) amounted to 6 056 tonnes in that year.

FAD (Fish Aggregating Device) fisheries contributed about 250 tonnes of pelagic fish towards the total landings and is being promoted as a means for diversification of production and reduction of effort in the lagoon fishery. Catch rates in this fishery (catch per fisher day CPFD: 10-20 kg) is higher than in the lagoon artisanal fishery which is in the range of four to six kg. FADs are set and maintained by government. In 2002, twenty FADs were operational around Mauritius. About 330 artisanal fishers are engaged in this fishery, and around 130 of them have benefited from concessionary loans offered by the Development Bank of Mauritius under an IFAD programme to buy boats and equipment.

A company based on the St Brandon islets employs between 30 to 40 contractual fishers who exploit, in addition to the lagoon, the external shelf to a depth of 35 m. Two vessels (22 m and 31 m LOA) belonging to the same company are also authorised to chill part of their catch per trip on return to Mauritius. The fishers also salt any catch when the vessels are not in St Brandon. In 2002 the production was 491 tonnes comprising of fish (frozen, chilled, and salted) lobster and octopus.

In Agalega, about 30 tonnes of fish per year are produced exclusively for consumption of the local population of about 300 inhabitants.

Industrial/semi-industrial fisheries

(a) Banks based fisheries

The shallow oceanic banks of the Mascarene ridge are exploited by a fishery fleet of freezer motherships of 25-55 m overall length (LOA) range, each one of them embarking 10 to 20 fibreglass dories of 6-7 m, powered by outboard engines. Each dory is operated on the fishing ground by three fishermen who use individual handlines. In 2002, there were ten such mothership vessels in operation. Each fishing trip lasts an average of two months. The annual catch, which varies between 3 000 to 4 000 tonnes (3 286 tonnes in 2000) is mostly gilled, gutted and frozen on board. Up to 90 percent of the catch consists of Lethrinus mahsena (sprangled emperor) and Lethrinus rubrioperculatus (spotcheek emperor). The associated species in the catch are Aprion spp. (jobfish), Variola spp. (sea bass), Caranx spp (trevally), Plectropomus spp. (grouper) and Epinephelus spp (grouper).

Vessels with fish holding capacities of up to 15 tonnes are also allowed to operate on the banks closer to Mauritius (St Brandon, Albatross, Soudan and Hawkins areas) for trips lasting up to 12 days. In 2002, nine vessels landed 204 tonnes of chilled fish comprising mostly of Lethrinid spp. (emperors) with smaller proportions of snappers, groupers and tuna.

(b) Tuna/pelagic fisheries

Tuna and tuna like species are widely distributed in the EEZ of Mauritius. They are fished by Mauritian and foreign fishing vessels under licences. The oceanic tuna fishery started in 1979 with a Mauritian-Japanese joint venture. Three Mauritian purse-seiners operating in this fishery landed 10 279 tonnes of tuna in 1993 for a local tuna canning factory. There has been a gradual decline of this fishery till 2001 when production dropped to zero, all the seiners having left the fishery. Subsequently, three Mauritian longliners joined this fishery and produced 219 tonnes in 2002.

Three local vessels were licensed to exploit the swordfish (Xiphias gladius) resource in the EEZ. They effected 52 trips and landed 45.8 tonnes of pelagic fish consisting of sword fish (55 percent), albacore (16 percent), yellowfin (11 percent), bigeye (five percent), marlin (three percent) and sharks (one percent).

Mauritius is an important transshipment base for tuna. Foreign longliners (licensed and non-licensed) fishing in the South West Indian Ocean, transship their catches in Port Louis, whence freezer carrier ships transport the catches to Asian markets. Some 17 447 tonnes of tuna and tuna-like species were transshipped through Port Louis in 2002. The tuna consisted of 79 percent albacore (Thunnus alalunga) and 14 percent yellowfin (Thunnus obesus). Some 439 longliners and 2 purse seiners called at Port Louis in 2002, for transshipment and/or bunkering, provisions, change of crew and repairs.

Mauritius has fishing agreements with the European Union, Japan and the Seychelles for fishing access in the Mauritian EEZ. The licence fees for foreign fishing vessels are US$3 000 for a period of 90 days and US$1 000 for any additional 30 days or part thereof. Some 216 vessels were licensed in 2002.

(c) Deep sea demersal fishery

Two local demersal trawlers of GRT 3 989 and 1 899 respectively were actively engaged in this fishery in 2002. The total catch unloaded amounted to 2 113 tonnes consisting basically of orange roughy, Holopstethus atlanticus (36 percent), bluenose, Hyperoglyphe Antarctica (19 percent), alphonsino, Beryx splendens, (18 percent) and rubyfish, Plagiogeion rubiginosus (17 percent).

Recreational/tourist based fisheries and non consumptive fisheries

The big-game sports fishery produces about 400 tonnes of pelagic fish annually. The sports fishery is a major driving force in the tourism industry. Each year, international tournaments in big game fishing are organized. The catch in this fishery consists mainly of blue marlin (Makaira nigricans), black marlin (Makaira indica) and sailfish (Istiophorus platypterus), striped marlin (Tetrapturus audax) and yellowfin, bigeye and albacore tuna. Other species like skipjack, sharks and dolphinfish (Coryphaena hippurus) are also caught. Some 52 boats of 10-15 m LOA are involved in this fishery.

Ornamental reef fishes, besides being a major attraction to divers and snorkellers, are also exploited on a small scale for export. Two operators are licensed to catch up to 6 500 specimens of fish and invertebrates of various species annually for export. Some 59 dive sites, associated with coral or artificial reefs (sunken vessels) are operated by underwater or hotel groups. In addition, a promoter is authorized to operate a small submersible with a capacity of some 30 people for viewing of coral reef life.

A recent survey by the Ministry of Fisheries has shown that about 23 400 persons are involved in recreational fishing in the lagoon of Mauritius. Some of them (about 1 000) are owners of boats. Indications are that their catch may be more than the current estimate of 300 tonnes annually.

Unexploited fish stocks

Exploratory trawling of the banks carried out by the R/V Professor Mesyatsev between 1975 and 1977 (Birkett 1979) have indicated that the possibility exists for developing a trawl fishery for small pelagic fish (Decapterus spp.) and deepwater lobster on the Nazareth and Saya de Malha banks. The potential yield of the fish stock is estimated at 26 000 tonnes. However the feasibility of commercial fishing for their resources has yet to be demonstrated through a pilot project.

A stock of deepwater shrimp (Heterocarpus laevigatus) at depths of 600-800 m on the shelf of Mauritius and Rodrigues has been identified with a sustainable catch of approximately 200 tonnes/year. Attempts at exploiting this fishery have not been successful so far on account of the high cost of initial capital investment, short shelf life of the product and marketing difficulties.

Contribution of fisheries to GDP

All the 12 capture fisheries listed in table 1 are exploited at various levels of intensity. The three most important fisheries by volume and value are: the shallow banks fishery, the demersal (trawler fishery) and the artisanal fishery of Mauritius.

The total fish production was around 10 000 tonnes in 2002, valued at US$29.15 million. Local production does not suffice to cover market needs and the shortfall is imported. The value of imports (83 753 tonnes) in 2002 was US$132.1 million (comprising, amongst others, tuna for processing and around 9 400 tonnes fish and fish products for local consumption) as compared to an export value of US$140.7 million (49 500 tonnes mostly of canned tuna) for the same year giving a positive surplus trade balance of US$ 8.57 million.

Though the tuna fishery (two percent by volume) appears to be negligible, the activities centered around tuna transshipment, bunkering/port-related services for tuna fishing vessel and tuna canning generate enormous economic outputs. Thus the total amount spent by fishing vessels in port-related services is estimated to be around Rs 3 billion per year. The tuna industry employs about 2 300 people, processes some 46 000 MT of raw tuna annually with a sale turn over of approximately Rs 2 billion of which 95 percent are in foreign currency earnings.

It is estimated that the fishing industry as a whole contributes about one percent to the GDP (UNDP/ FAO 1998).

MANAGEMENT ACTIVITY

By virtue of the Fisheries and Marine Resources Act of 1998, the Ministry of Fisheries is responsible for the management and development of fisheries in the waters of Mauritius, i.e. at national level. The Minister may promulgate any regulation for the purpose of implementing the Act. However, as regard licensing of foreign vessels in the EEZ, the approval of the Prime Minister’s Office (PMO) is required. Furthermore any research (including fisheries and the marine environment) should also be authorized by the PMO. At the regional level, the Rodrigues Regional Assembly is empowered to make regulations for the control of fishing activities in Rodrigues.

Although the Fisheries and Marine Resources Act neither defines the term ‘fisheries management’ nor does it spell out any objective of ‘fisheries management’ as such, the overall objective of the Act itself is stated as providing for management, conservation, protection of fisheries and marine resources, and the protection of the marine ecosystem. The various provisions, especially in Part II, (see section III above) establishes an adequate framework for adopting and implementing management measures though, again, the Fisheries and Marine Resources Act does not set out a series of steps that have to be followed as part of the process for fisheries management or conflict management. There is no separate legislation for specific fisheries.

Management measures are generally implemented in consultation with stakeholders. Decisions reached may be followed the promulgation of specific fisheries regulations designed to better manage the fishery. In order to facilitate interactions with stakeholders, two committees: the coastal fisheries consultative committee and the off-shore fisheries consultative committee were set up in the mid 90’s to allow the Minister of Fisheries to consult with the stakeholders on matters related to fisheries management and development and marine conservation. In addition, an Integrated Coastal Zone Management Committee (under section 50 of the Environmental Protection Act 2002) has been set up in 2003 under the chairmanship of the Minister of Environment to deal with coastal zone management. Nevertheless, more frequent consultations on current problems encountered by fishers are held on an ad-hoc basis to discuss issues related to fisheries management.

Consultations were held with stakeholders, including artisanal fishers, organizations representing professional fishers involved in banks fishing, NGOs and conservation groups, to elaborate of the following policy and management documents:

• the Fisheries and Marine Resources Act 1998;

• Plan for quotas allocations in the banks fishery;

• the 10-Year Fisheries Development Plan (the policy document mentioned in section II);

• the Marine Protected Area Regulations (2000).

In the last case, a compensation of Rs 200 000 was paid to each of the 37 fishers fishing in the region for loss of some fishing grounds when the regulations in the one of the marine parks were enforced. The level of compensation was based on amounts paid in 2000 to some 1 000 lagoon sand miners for phasing out their activity which was impacting negatively on the marine environment.

On the whole what was learnt from this and other similar consultation exercises (e.g. on hotel construction, dredging projects) is that fishers are becoming more organized to make their voice heard on all coastal developments works that are perceived to affect their livelihood. They are only willing to compromise provided a reasonable financial compensation is provided in their favour in certain cases.

Past legislations have concentrated basically on the artisanal fisheries. Most regulations have also focused principally on that fishery. In fact with the exception of the artisanal fishery, no regulations have been promulgated so far for the other fisheries enumerated in table 1. These fisheries are controlled either directly by implementation/enforcement of certain provisions/sections of the Fisheries Act, in particular section IV outlined earlier or by licensing under section VI relating to the coastal artisanal fisheries and the off shore fisheries by Mauritian and foreign vessels respectively (see legal framework section). Licenses are issued with specific conditions relating, amongst others, to conservation measures.

No licences/permits are issued in the recreational (lagoon) and sports fishery (offlagoon). Therefore, with the exception of these two fisheries, all the fisheries can be considered as being managed in some way or other. However, regulations for the management of the recreational and sports fishery are in the process of being elaborated, more so, as their competition with existing artisanal fisheries is becoming more obvious.

There are currently no formal management plans written/elaborated for each fishery though the document prepared for consultation regarding quotas allocation (mentioned above) among licensees in the banks fishery may be considered as a management plan. Another management plan covering the banks and St Brandon fisheries will be elaborated with the assistance of the FAO as from this year under TCP/MAR/300/A: Stock Assessment and Fishery Management of St. Brandon Plateau and associated banks. This project will cover, amongst others, the following basic components: fish stock assessment of St Brandon plateau, banks fishery management programme and operational management process. Consultation with stakeholders will be an integral part of the process.

The management process takes into account available scientific data on specific fisheries. Time series of data on catch and effort are routinely collected on all the exploited fisheries from landing stations, the fishing port and from vessels/logbook inspections. The fishery statistics collection programme on the artisanal, multi-species, multi-gear fisheries (lagoon) in Mauritius has been implemented since 1977 based on a Catch Assessment Survey (CAS) designed by FAO. The results of the analysis provided estimates of total catch, catch by different gear and catch per fisher day (CPFD). Similarly the annual catches from the banks fishery, chilled fish fishery, and the tuna fisheries are compiled and the CPFD is estimated annually. All the processed data are also published in annual reports of the Ministry of Fisheries. Time series of such data coupled with estimates of MSY for the artisanal lagoon and banks fisheries (1 699 tonnes and 4 500 tonnes respectively) carried out in 1988 (Saunders et. al. 1988) suggest that the MSY level in these fisheries might have been reached already.

The data collected are used to follow trends in the fisheries being managed and not for determination of close seasons. It is to be noted that closed seasons are in force in only one fishery (artisanal lagoon) as per the Fisheries and Marine Resources Act (Section 18). Similarly, the number of licences to be issued for nets in the same fishery was defined in the Act (Section 32). Thus there are no closed period in the banks tuna and other fisheries mentioned earlier. However, with the exception of the tuna and the swordfish fishery, the numbers of licences to be issued to vessels in the banks and the chilled fish fishery have been based on the estimated MSY of these fisheries, capacity of typical vessels operating in each of the fishery and the average number of trips such vessels can perform. Once the maximum number of licences has been issued, adjustments in case of overfishing are made using quotas allocated to licensees rather than reduction of licences

Management tools in the lagoon fishery

The management tools utilized for the control of the lagoon fishery include marine protected areas (two marine parks and six fishing reserves have been promulgated), closed seasons (for large nets and gillnets), gear size and gear type restrictions (see section III), minimum size restrictions (of common commercial fishes), and limitation on number of licences for nets in Mauritius, Rodrigues and Agalega. The closed period of about five months in summer coincides with breeding periods of different populations of commercial fish species. As a social measure, a closed season allowance is also paid to fishers involved in the net fishing. The marine protected areas (where nets are not allowed to operate), provide additional protection to the adult as well as the juvenile fish populations throughout the year.

A buy-back programme for the voluntary relinquishing of nets and net permits against financial compensation to permit holders and fishers is in operation since 1996. This was combined with a further reduction of number of nets allowed in the Fisheries Act of 1998 (i.e. from 33 large nets, 33 canard nets and 20 gillnets for the island of Mauritius in the previous Act 1980 to ten large nets, ten canard nets and ten gillnets). Thus the by-back programme will continue until such time that the numbers of nets match that fixed in the new Act. In the transitional period, net licence holders may continue to have their licence renewed. This programme basically aims at the protection of the ecosystem and the reduction of effort in the lagoon fishery. In effect, the last aim could not be fully attained as most of the fishers who abandoned the large net and gillnet fishing resorted to basket trap and line fishing in the lagoon artisanal fishery (a multi-species, multi-gear fishery).

TABLE 2
Allowances paid to artisanal fishers in 2002 (Mauritius)

It needs to be mentioned here that government pays compensation (as a social measure) to fishers engaged in net fishing during the closed season. In the same vein, a bad weather allowance is also paid to all registered artisanal fishers during bad weather (declared using wind speed and roughness of sea as criteria). Net fishers do not get this benefit during the closed season. The allowances are strong incentives to keep fishers in the fishery and make any effort reduction programme difficult (see Table 2).

In fact, both the total catch and catch per fisher per day (CPFD) in the lagoon fishery showed a decline over the last ten years prior to 2002 (catch: 1775 to 1 302 tonnes: CPFD: 5.9 to 4.3 kg). Though the management regime does not seem to have improved the stock situation in the lagoon fishery, it is most likely that they have prevented further deterioration. This remark does not take into consideration increasing activities associated with coastal developments nor the lack of control over the recreational fishing that may be adversely impacting on the marine resources.

Management tools in the banks fishery

In the banks fishery, the following management tools are utilized: limited number of licences, limited entry, and total allowable catch. This management regime was dictated by the fact that for some years in the 80’s and 90’s, total annual catches (e.g. 5 449 tonnes in 1987) were reaching levels well beyond that of the estimated MSY of 4 500 tonnes for the banks. These management tools contributed to stabilizing the state of the stocks (See Box 1). This could be deduced from the gradual increase in CPFD and sensible increase of average size of fish caught, though the total catch (3 943 tonnes in 2002) declined principally on account of reduced fishing efforts.

Management tools in the EEZ fishery

As pointed out earlier, Mauritius presently has limited capacity to exploit the tuna resource. Licensing of foreign vessels under conditions compatible with international practices to access the EEZ is the best course of action available to the country. It meets one of the objectives set by the ministry for maximizing return from fisheries and “ensuring the contribution of fisheries to national socio-economic development.”

Among the licence conditions which contribute to the conservation of the resource are a closed zone from the base line (to avoid conflict with coastal fishing), requirement for transshipment in Port-Louis harbour, submission of properly filled logbooks upon arrival of vessels in port, display of radio call signals, allowing boarding and inspection of the vessel and observers to stay on board, informing of vessel positions whenever it enters and exits the EEZ and additional vessel position information, together with a catch report, at three-day intervals. (This last condition will soon be reinforced with the introduction of a VMS requirement under a new regulation).

Trends in management tools

In general, management tools used in the control of fisheries are enduring gradually and some refinements have been effected as in the case of the banks fishery (see box 1). Licensing of vessels has however been increasingly used. Though a high level of exploitation was reached in the two fisheries mentioned earlier, management tools in general contributed to stabilizing the stocks and improvement has been noted in at least one case.

TABLE 3
Fishing License Conditions

The major impediment to improved management at national level is the lack of effective enforcement, especially regarding control of foreign fishing or IUU fishing in the EEZ. It is to be noted, however, that Mauritius is working within the framework of the Indian Ocean Commission (grouping most of the island states of the South West Indian Ocean) towards the setting up a regional Monitoring Control and Surveillance (MCS) system. Simultaneously, funds under the EU fishing agreement are also being utilized to set up a vessel monitoring system (VMS) which is planned to become operational in 2005. Furthermore, as a member of SADC, Mauritius also participates as an observer in activities related to the establishment of effective co-operation on MCS among the SADC Coastal Member States (Angola, Namibia, South Africa, Mozambique and Tanzania). Activities relate to information gathering; training, planning analysis; legal issues review and analysis, economic planning analysis; co-management review; national and regional workshops on the above; and initiation of national projects.

COSTS AND REVENUES OF FISHERIES MANAGEMENT

The work of the Ministry of Fisheries (i.e. administration, research, monitoring and control) is geared towards the management and development of fisheries and conservation of the marine living resources. Fisheries management does not figure as a specific item in the budget. The recurrent expenditure, comprising personal emoluments and other recurrent charges gives an indication of costs of managing fisheries in Mauritius. Thus about ten years ago (financial year 93/94) the cost was Rs 37.14 million as compared to Rs 96.345 million in the financial year 2002/2003 - an increase of 159 percent. In real terms there has been a gradual increase in the budget to meet increases in cost of living expenses and inflation; increases in staff numbers; and to cater for additional activities associated with management. All the services provided are covered from public funding with only minor inputs from other sources such as bilateral assistance in research programmes and consultancies.

Running costs of any service generally increase from year to year. There has been an increase in management activities over the years mainly associated with increased stakeholders meetings, monitoring and enforcement activities related to coastal artisanal fishing, licensing and inspection at port of foreign fishing vessels and sampling programmes on vessels. The increase in development activities associated with tourism and other coastal developments including dredging works in the coastal zones and lagoon continue to trigger numerous meetings/consultations, protests and even law suits and financial claims on the part of fisher groups.

In the financial year 2002/2003, the revenue collected for fisheries was MR 25 217 414, of which licence fees from fishing vessels represented 87 percent. The rest were contributed by fees for import permits (12 percent) and sales of produce (0.85 percent).

The revenue in the financial years 93/94 was MR 1.9 million out of which license fees (MR 0.4 million) represented 21 percent. Therefore, over a span of a decade, revenue has increased twelve-fold with license fees alone increasing 55 times. Any revenue collected goes to the general government fund and is, therefore, not directly available for fisheries management activities. Revenue represented 26 percent of the running cost in 2002/2003.

IMPLEMENTATION OF GLOBAL FISHERIES MANDATES AND INITIATIVES

Mauritius has ratified the United Nations Convention on the Law of the Sea (UNCLOS) and the United Nations Fish Stock Agreement (25 March 1997). It has recently deposited its instrument of acceptance of the FAO Compliance Agreement on 27 March 2004. Actions to implement some of the important provisions of these instruments in domestic fisheries are:

UNCLOS:

• Article 61: determination of allowable catch in the EEZ

  There is a sustained effort on the part of the country to monitor catch and effort in all the fisheries exploited in its waters. This process is also complemented through a number of stock assessment projects carried out at the level of the research service of the Ministry of Fisheries. Maximum sustainable yields in some nearshore bank/demersal fisheries were estimated (Saunders et al., 1988); however, allowable catch has been worked out for the banks fishery only. As regard the stock assessment and catch limits of the highly migratory pelagic (regional) resources, the country continues to work in the context of the IOTC.

• Article 62: access to surplus allowable catch to other states

  As mentioned earlier, Mauritius is not in a position yet to exploit the pelagic resources fully. Access to the resources is being provided through licensing of foreign vessels and through fishing agreements with an intergovernmental organization (EC) a fishing association (Federation of Japan Tuna Cooperatives Association) and the Seychelles.

• Article 63: States to agree upon the measures necessary for the conservation of stocks (straddling) occurring in overlapping EEZ and beyond, either directly or through RFMO

  Mauritius is participating in the setting up of the Southern Indian Ocean Fisheries Agreement which will address such issues.

• Article 64: Highly Migratory stocks: obligation to cooperate with a view to ensure conservation and optimum utilization throughout the region

  As mentioned, Mauritius cooperates fully with IOTC.

UN Fish Stocks Agreement

FAO Compliance Agreement

Detailed information in respect of vessels entitled to fly the flag of Mauritius and authorized to fish on the high seas are submitted to FAO as per Article VI of the Agreement.

International Plans of Action

PARTICIPATION IN REGIONAL FISHERY BODIES (RFBs)

As a member of Indian Ocean Tuna Commission (IOTC), Mauritius participates in all its work and is bound to implement management measures, resolutions, and decisions adopted by the Commission when applicable to members. The Commission may adopt, by a two third majority, on basis of scientific evidence, conservation and management measures to ensure the conservation of stocks covered by the agreement and to promote the objective of their optimum utilization throughout the convention area. At its last meeting in 2003, it was pointed out by the Scientific Committee that, with the exception of skipjack, most of the important fish stocks (yellowfin, bigeye and swordfish) are being fished above or near their MSYs (IOTC 2004). However, the Commission has not so far adopted any measure pertaining to spatial, temporal, gear, size, catch, or access restrictions. The terms of reference are being worked out to commission a report on management options for tuna and tuna like resources in the Indian Ocean. Meanwhile, in line with FAO Compliance Agreement and the IPOA-management of fishing capacity, a binding resolution on limitation of fishing capacity of Contracting and Cooperating Non-Contracting Parties was adopted, taking into consideration interest of small developing states like Mauritius with legitimate aspiration to enter the fishery.

Decisions/resolutions/recommendations of the Commission are implemented by the Ministry of Fisheries after the implication of any new measure or regulation arising out of the commission’s decision has been studied fully.

Mauritius contributes to the tuna stock assessment programme of the IOTC. Tuna fisheries are monitored through acquisition of fishing data (samplings) obtained from licensed vessels which call at Port-Louis for transshipment. Species compositions, length distributions, reproductive indices (gonad index, sex ratio, maturity, etc.) and spatial distribution of tuna catches from licensed longliners and purse seiners are worked out and transmitted to IOTC.

Mauritius is participating in intergovernmental consultations with the view to setting up of fisheries commissions to cover fisheries falling under national jurisdictions in the South West Indian Ocean (SWIO) and fisheries (non-tuna resources) falling in the high seas in the SWIO. The last consultation meeting held in the Seychelles (13-16 July 2004) unanimously adopted the draft resolution and statutes for the establishment of the Commission for the Management and Development of the Coastal Fisheries of the SWIO. The statutes have been approved by the FAO Council in November, 2004.

In the context of SADC, Mauritius has signed a Fisheries Protocol in 2001 which aims, amongst others, at the promotion of responsible use of living aquatic resources of SADC member states, ensuring food security and human health, safeguarding of the livelihood system of fishing communities and generating benefits from renewable resources. The implementation of the Protocol is basically national. Policies and strategies adopted locally are in line with the Fisheries Protocol. As regard regional cooperation in fisheries in SADC, a few projects are being implemented which are funded from outside sources such as the EU and FAO notably concerning MCS (mentioned earlier in section V) and harmonization of fisheries legislation on which a regional workshop (funded by FAO under TCP/RAF/8933) was held in 2001.

Mauritius has also become party to the Convention for the Conservation of the Antarctic Marine Living Resources (CCAMLR) since October 2004 and cooperates with it in its effort to deter and eliminate IUU fishing in the convention area of CCAMLR.

Information on catch/transshipment and calling vessels are provided to CCAMLR. Mauritius also participates in joint inspection of toothfish fishing vessels calling in Port-Louis with the flag state inspectors in the verification of catch document and vessel monitoring system (VMS) prior to authorization of transshipment or landing of the catch. Since February 2003, it is mandatory that every Patagonian toothfish fishing vessel calling in Port-Louis for transshipment should be equipped with a VMS that should be functional throughout the fishing campaign.

SUMMARY AND CONCLUSIONS

Of the twelve fisheries which are exploited at various levels of intensity, ten of them are under some form of management regime. Of the managed fisheries, there are published regulations for only two of them and only one is covered by a management plan. The rest of the managed fisheries are controlled through licensing with attached conditions. Management measures will need to be elaborated urgently for the two recreational fisheries in view of their potential to create conflicts with existing artisanal fisheries.

Management tools utilized to control fisheries are gradually evolving and licensing is increasingly utilized. High levels of exploitation have been reached in two fisheries, the lagoon artisanal fishery and the banks fishery, and the management tools put into place in these fisheries have contributed to stabilizing the stocks and even help stock recovery in the latter fishery. In the former case, although management regime does not seem to have improved the stock situation, it is most likely that they have prevented further deterioration. A precautionary approach in the management of other fisheries needs to be pursued.

Though the Fisheries and Marine Resources Act of 1998 does not set up a series of steps or process to be followed for elaboration of fisheries management regulations or plans or for resolution of conflicts among stakeholders, its framework allows the setting up of basic processes for management of fisheries such as consultation, collection of data and elaboration of conservation measures (including setting of quotas and licensing) and regulations. The Act allows for the fulfillment of some important provisions contained in international conventions/agreement, such as the authorization to fish in international waters and in waters of another state. Mauritius has taken some positive actions toward fulfilling important provisions of the IPOA-IUU, though no national plan has been produced yet.

Fisheries management costs are borne by the government. Such costs increase year by year basically on account of increasing conflicts between operators in fisheries and those in coastal development and on account of the increasing need for consultations, monitoring (including collection of data on fisheries) and enforcement, human resources and logistics. The Fisheries legislation does allow for revenue collection through licensing of fishing vessels; however, the revenue goes to the general government fund and, therefore, is not directly available for fisheries management activities.

The contribution of fisheries to GDP (without taking into consideration the considerable contribution of fishing related activities in port services and fish processing) is low although a positive balance of trade has been achieved. Limited potential exists for further development of marine capture fisheries except for the offshore migratory species such as tuna and tuna like species. Therefore, the objectives of fisheries management and development should be geared towards sustainable use of existing fisheries and the protection of the marine environment that is of prime importance to a growing industry like tourism. At the same time the social dimension where artisanal fishers are key players should be given due consideration. Concerning the tuna fisheries, the objective of managing this resource should be to provide the necessary incentives for increased Mauritian participation while continuing to maximize economic returns in a regional context under the management regime of the IOTC.

Some factors which may contribute to a more effective management of fisheries are:

• Amendment of the Fisheries and Marine Resources Act to define fisheries management and its objectives and to explicitly introduce the concept of sustainable use, precautionary and participatory approaches and other principles as elaborated in the Code of Conduct for Responsible Fisheries;

• Promulgation of regulations and elaboration of management plans (with clearly stated objectives) where appropriate for each fishery with participation of stakeholders;

• Improvement of resource assessments including enlargement to cover recreational/sport fisheries;

• Implementation of fisheries information management system to integrate data from resources exploited by different categories of vessels. This system should also integrate licensing and other relevant data;

• Implementation of a vessel monitoring system (VMS) for increased control over licensed vessels as part of a regional and international monitoring, control, and surveillance (MCS) network;

• Involvement of fishing community representatives in co-management consultation processes, where practical, and timely dissemination of information to stakeholders;

• Establishment of more formal cooperative arrangements between the Fisheries Protection Service (FPS) and the National Coast Guard (NCG) for enforcement of fisheries legislations; and

• Elaboration of a socially acceptable policy for limiting number of fishers in the heavily exploited artisanal fisheries and for controlling recreational fishing exploiting the same fisheries.

REFERENCES

Albion Fisheries Research Centre (AFRC). 1995-2002. Annual Reports (Fisheries) 1995-2002. Ministry of Fisheries. Republic of Mauritius.

Anon. 1998. A Ten Year Development Plan For The Fisheries Sector. Volume 2. The Ten Year Plan. Project No. TCP/MAR/6712 (A). Government of Mauritius/UNDP/FAO, 189p.

Birkett, L. 1999. Western Indian Ocean Fishery Resources Survey Report on the cruises of R/V Professor Mesyatsev, Dec 1975- June 1976/ July 1977- Dec 1979. IOP/Tech/79/ 26, TR No. 26, FAO 1979.

Christy, C. 1986. Fisheries legislation in Mauritius. Fisheries Law Advisory Programme. Indian Ocean Region. Project for the development and management of fisheries in the South West Indian Ocean. FI: GCP/INT/400/NDR, FL/ IOR/85/16. FAO 1986.

IOTC. 2004. Report of the Eighth Session of the Indian Ocean Commission, Victoria, Seychelles, 7-13 December 2003. IOTC-S-08-03R [E].

Lozachmeur, J., Venkatasami, A., Soondrons Beeharry, S.P. & Silvestrini, G. 1991. Development of Deep Water Shrimp fishery in Mauritius. Ministry of Agriculture, Fisheries and Natural Resources and FAO. Project UNDP/FAO/MAR/88/004. FAO. 1991. 44p

Ministry of Fisheries. 2004. Internet website www.ncb.intnet/fish/about.html.

Republic of Mauritius 1988. The National Coast Guard Act 1988.

Republic of Mauritius 1991. State of the Environment in Mauritius. A report prepared for presentation at the United Nations Conference on the Environment, Rio De Janeiro, Brazil, June 1992. Ministry of Environment and Quality of Life, Government of Mauritius. Port-Louis, Mauritius 1991. 403p.

Republic of Mauritius 1998. The Fisheries and Marine Resources Act 1998, Act No. 22 of 1998.

Republic of Mauritius 1998. The Ports Act 1998.

Republic of Mauritius 1998. The Food Act 1998.

Republic of Mauritius 1999. National Environment Strategies for the Republic of Mauritius: Review of the Legal and Institutional Framework for Environmental Management in Mauritius (Appendix to NEAP2) July 1999. 78p.

Republic of Mauritius 1999. The Food Regulation 1999.

Republic of Mauritius 2001. The Fisheries and Marine Resources (Marine Protected Areas) Regulation 2001. Government Notice No 172 of 2001.

Republic of Mauritius 2002. The Environment Protection Act 2002 (Act No 19 of 2002).

Sanders, M.J., Sparre, P., & Venema, S.C. 1988. Proceedings of workshop on Fisheries Resources of the SWIO. Albion, FAO/ UNDP/RAF/79/065/ WP/41/48/E. 277pp.

APPENDIX TABLES

Current Management of Marine Capture Fisheries in Mauritius

* In other cases of managed fisheries where no regulations have been published, licenses with conditions/rules are issued to participants under the Fisheries Act.

** Only one fishery is concerned.

Summary of information for three largest fisheries (by volume) in Mauritius (2002)

* Value in 2002 U.S. Dollars.
** % values caught and % volume caught are based on totals for each category of fishery.
*** Managed through licensing and quotas.

Use of Fishery Management Tools within the three largest fisheries in Mauritius

Costs and Funding Sources of Fisheries Management within the three largest fisheries in Mauritius

Compliance and Enforcement within the three largest fisheries in Mauritius

* May be required to take observers on board but there is no formal observer programme.