In establishing strategy for the development of the Fishermen Relocation Programme (FRP), it is important that the strategy adopted must be flexible enough to allow modification or revision during the implementation based on the identification of improvements in technology, mobility of fishermen, availability of resources, achievements of goals and socio-economic improvements in fishing communities. In this context, it is imperative to establish an effective monitoring and evaluation system to measure project outputs, the effects and the impacts on a continuous basis.
The methodology required in planning relocation programmes of traditional fishermen is complex as it is involved not only with the economic criteria of profitability and productivity but also with social and welfare considerations of these fishermen. Their life-style, perceptions and motivations will have to be fully understood by development planners. Reportedly there are a substantial number of fishermen who drifted back to fishing from land development projects which they joined because they failed to acclimatize themselves in the new environment.
The FRP cannot be successfully implemented unless appropriate management programmes that regulate fishing activities are effectively carried out. Likewise, the implementation of a fishermen's registration system is imperative to limit or reduce a new entry of fishermen.
Any relocation programmes cannot be planned in isolation from the main stream of the economy and markets. They should not be implemented just for the sake of relocating surplus fishermen. Unless the project could bring forth increased incomes and better social conditions, the objectives of the FRP cannot be said to have been achieved. The main element of relocation development is therefore to promote relocation/resettlement projects conducive to increased productivity and returns, economic efficiency, effective marketing and easier access to social services and infrastructure.
Since the present level of production will have to be maintained, the Government and the industry must be conscious over the need for raising productivity and efficiency in fishing to achieve national self-sufficiency targets.
Although LKIM is expected to assume the executive functions with respect to the FRP1, proper coordination must be established with the DOF in the planning and implementation of the FRP. Clearcut division of duties and functions between LKIM and DOF is essential to eliminate overlapping of authority and to guard against conflicts of interest between the overall policy objectives and their implementation. On the basis of the policy guidelines given by the Central Steering Committee, it is suggested to define the functions of LKIM and DOF with regard to the FRP as follows:-
1 This was agreed at the Central Steering Committee Meeting held on 19.9.1985.
In line with the policies set out in the New Economic Policy (NEP) and the National Agricultural Policy (NAP), broad development objectives have been established by the Central Steering Committee for the development of the FRP as described in the previous section. IT must however be pointed out that the objectives may evolve or be developed during the implementation process and the need may arise to give modifications to them to reflect local realities and to address local constraints. The responsibility of LKIM is thus in close consultation with MOA and DOF to ensure that the objectives of the FRP are well defined and the targets established are realistic in the light of the changing circumstances of the fishing industry.
It is envisaged that approximately 27 000 fishermen may be relocated under the FRP in 15 years. Of those there are some 11 500 traditional boatowners who are using uneconomic boats and gears, 10 000 crewmen working for commercial boats and 6 200 commercial boatowners.
LKIM will be responsible for the identification of fishermen interested in relocation programmes through field surveys or other methods of investigation. Close collaboration with DOF has to be established where fishermen are to be relocated under the VBBP. It can be envisaged that part of the boatowners (particularly commercial boatowners) could be absorbed by the off-shore fishing sector.
In view of the fact that there are a great many surplus fishermen in non-FDA areas (14 859), the size and scope of LKIM's activities will have to be expanded in order to accomodate non-FDA areas as far as the FRP is concerned.
Once the short-term goals and the plan of operation are established, steps should be taken in several stages to ensure that such plans can be efficiently implemented and that the proposed activities will achieve their intended objectives. The following stages are suggested for adoption.
Stage One
To establish annual targets by sectors of fisheries (i.e traditional and commercial) and by region;
To prepare an annual work plan and secure resources;
The identification of information needs with regard to fishermen to be surveyed and the preparation of a questionnaire to be used for field surveys;
To discuss the plan of operation with the departments and agencies concerned at both the federal and state level;
To inform community leaders of the villages to be surveyed on the objectives, procedures and schedules of field surveys and call for their cooperation.
Stage Two
Implementation of field surveys to identify fishermen who are willing to change their occupation and/or the place of residence.
Stage Three
To analyse data collected from field surveys with regard to the socio-economic status of fishermen, their willingness to change, preferred areas to go and others.
A list of fishermen interested in changing occupations classified according to the area of industry will be distributed to the departments and agencies concerned for their considerations and appropriate action;
To organize orientation programmes (e.g. study tours to model projects, etc.) to enable the interested fishermen to have a clear picture on the project and environmental conditions.
Stage Four
To prepare a relocation project, where necessary, (either a new project or strengthening the existing one) with regard to off-shore fishing, aquaculture, fish marketing and processing.
To identify training needs and requirements for fishermen and their family members based on field surveys and make necessary arrangements for them to attend short or long term vocational training courses.
The progress of the FRP must be continuously monitored and evaluated in order to achieve the goal intended. Monitoring can be defined as the continuous information gathering on project input delivery (e.g. funds disbursed, staff services delivered, equipment supplied, etc.) as well as on complementary activities that are critical to the success of the FRP such as the implementation of the Fishermen's Registration System.
Evaluation is the continuous analysis during the project implementation of inputs, effects and impact. For example, as stated earlier none of those who were trained under the LKIM vocational training programme have as yet obtained alternative jobs. The effect and impact of the LKIM training programme has so far been virtually zero. It is absolutely necessary to carry out evaluation on the present programme to enable LKIM to assess and, if required, adjust objectives, institutional arrangements and resources of the training programme.
It is important to design a monitoring and an evaluation systethe FRP at the planning and designing stage of a project as well as the implementation of such a system which should be an ongoing process with continuous refinement.
Indicators are important tools for the measure of change or of the comparison between goals, actual achievements and where necessary, the previous situation. Indicatiors to be used for the FRP could be established on the basis of the following criteria: (a) easry access to data; (b) reporting by means of pre-coded report format; (c) speed and frequency of data availability and (d) cost of the data collection, analysis, storage and retrieval.
The following sets of indicators are suggested for use:
Indicators related to the income status, living conditions, social services and access to infrastructure;
Indicators related to production, labour productivity, CPUE and the state of fish resources in regard to relocation to off-shore fishing;
Indicators related to the number of fishermen interested in the FRP and those who have been relocated;
Indicators related to the number of alternative employment opportunities by types of industry and the number of those relocated;
Indicators related to the number of those who were trained (by types of courses) and the number of those who obtained alternative jobs relevant to the training that they underwent.
Since there are many institutions involved in relocation/resettlement schemes, proper coordination of development activities among the concerned offices is essential. Better communication would contribute to the smooth flow of information. There is at present a Steering Committee on Agriculture Resettlement Development at the federal level composed of representatives from the Agriculture Ministry, DOF, FELDA, LKIM and others. 1 This Committee have responsibilities to provide policy guidelines with regard to fishermen relocation programme.
It appears to be important to have a similar committee at the state level, too. Since LKIM ought to be responsible for the implementation of the FRP, LKIM should chair the committee at the state level with power to coopt other members into the committee.
There is presently a technical sub-committee among the Agriculture Ministry (Chairman), DOF and LKIM and it meets periodically (once a month on an average). In order strengthen the role of the sub-committe, it is suggested to clearly define the terms of reference as follows.
To review critically goals, policies and objectives of the FRP with the viewpoint of the national development perspective;
To review major problems as well as the progress of the on-going projects;
To discuss planned projects, as future plan of action such as field surveys, training programmes, orientation programmes (e.g. study tours) to avoid over lapping and the duplication of efforts;
To prepare a project jointly and submit it to the Steering Committee for approval.
Carrying out a study on the impact of the reduction of fishing effort on fish resources as a result of the FRP;
Implementation of the Vessel Buy Back Programme (identification of target fishermen and arrangement to get alternative jobs will be made by LKIM, but matters related to the payment of money and cancellation of the registration of vessels will be undertaken by DOF;
Establishment and implementation of the Fishermen's Registration system with a view to limiting entry into the fishery sector;
Implementation of management measures with a view of protecting traditional fishermen who remain in fishing so that they may increase their individual catches;
Promoting expansion of job opportunities in off-shore fishing;
Training of skilled manpower for off-shore fishing in connection with relocation programmes.
Within LKIM the FRP is undertaken by the Fishermen's Community Development Division which is essentially concerned with the socio-economic development of fishermen and fishing communities and with the development of fishermen's associations. There are two operational units in the Division, namely, the Social Development Unit and the Institutional Development Unit. The FRP is one of the four sub-programmes 1 undertaken by the Social Development Unit.
The Division is presently equipped with a development staff of 21 i.e. Director (1) Deputy Director (2), Development Officer (7), Assistant Development Officer (11). Of them, one Development Officer and two Assistant Development Officer are responsible for the sub-programme of upgrading skills and entrepreneurship which is concerned with the FRP. One Development Officer is attached as a counterpart staff to the TCP/MAL/4403.
As shown earlier, present efforts with relocation programmes by the Community Development Division are mainly directed to training. Instead, relocation programmes for off-shore fishing are undertaken by the Technical Division under the Vessel Ownership Scheme and aquaculture resettlement projects are designed and implemented by the Aquaculture Division. There is a clear need for close monitoring and coordination of all activities concerned with the FRP within LKIM. Since the size and extent of the FRP may be expanded in the future (perhaps it may include marketing or processing resettlement projects as well), such an coordinated action is essential.
There is also a need for increasing the number of staff in the Community Development Division. One senior level staff member will be required to take on responsibilities for overall planning, coordination, monitoring, evaluation as well as data processing, storage and dissemination with regard to the FRP.
At the state level (i.e. LKIM state office and FDC), there are no officers who are exclusively responsible for relocation programmes. This matter is dealt with on an ad-hoc basis when the need arises.
The importance of strengthening data collection, storage and the dissemination system for the FRP can not be overemphasized. Data to be collected by LKIM through field surveys may be divided into two categories;
The socio-economic background of fishermen (a profile of fishermen);
The willingness to change occupation and/or the place of residence and preferred areas to go.
a) Socio-economic Background Of Fishermen
The following information and data should be at least collected with regard to the socio-economic status of fishermen.
Level of education: Primary, Form
1 to 3, Form
4 to 5, Above
Form 5, no
school attendance;
b) Willingness to Change Occupation And the Place of Residence
A list of the name of fishermen who indicated their willingness to change occupations and/or the place of residence will be prepared according to the types of occupation that they wish to join, i.e. land development scheme, agriculture, aquaculture, cottage industry, animal husbandry, manufacturing, small scale business and off-shore fishing.
c) Establishment of The Data Bank
In order to make a data bank more responsive and conducive to actual needs, there is a need to set up a system and mechanism to provide fishermen as well as the offices concerned with labour market information (i.e. job opportunities) in collaboration with the Ministry of Labour. The proposed system could be linked to the Employment Service Automatic Reporting System operated by the Ministry of Labour and would help match labour demand and supply in fishermen's labour market. The proposed data bank can be fully utilized by LKIM and DOF for the monitoring and evaluation of the FRP as well as the Fishermen's Registration System.
A computerized system of data processing, storage and reporting should be established within LKIM in this context.
