Appendix 4

PRESENTATION OF GROUP WORK

Welcome to Equatoria !

You are members of a team of fisheries officials from the inter-regional Association of Coastal African States (ACAS) and have been sent by the organization to advise the government of Equatoria on how to resolve problems arising from the presence of substantial numbers of artisanal fishermen from Tropica in the country.

Attached you will find some basic data on Equatoria, particularly those concerning the fisheries sector the last 30 years, including statistics on catches, number of canoes, etc.

You will be travelling to Equatoria several times, each time to deal with a specific question or set of questions, so do not try to solve all of Equatoria's fisheries problems at one time.

Please bear in mind that this exercise is a simulation. Equatoria is a fictitious country which is not modeled on any specific West African nation, though some of Equatoria's problems may be encountered here and there in real countries.

Any possible similarities between Equatoria and actual African nations are however unintended and purely coincidental.

Good luck with your assignment !

Appendix 4.1

BACKGROUND NOTES ON EQUATORIA

1. General

The Republic of Equatoria is a West Africa country which gained independence in 1960. At the time, it has the most part in the rich agricultural areas of the Central Province. It's coastal belt has traditionally been sparsely populated. The sandy plains of Western Province, the mangrove swamps of Delta Province and the steep mountains of Eastern Province are for the most part unsuitable for cultivation.

Equatoria's rich mineral deposits, particularly copper and bauxite, have long been the

backbone of the country's economy. A railway linking the mining areas in Northern Province and the main port in the south, was completed in the 1950's and Portville has since grown to become the largest town in the country.

The first 15 years of its existence, remained very much a closed country to the outside world except for certain European nations who purchased much of the country's mining products.

After the death of the country's first president in 1975, a more liberal regime took over. Equatoria opened up more, and many young workers from neighbouring countries started to drift in, particularly to Portville. The elections of 1987, however, brought a new government to power, and one of its first actions was to expel all foreigners without legal immigration papers from its territory.

By 1990, Equatoria's population had increased to about 10.5 million.

2. Fisheries

Inland fisheries, including estuary fisheries in the delta of the Equatoria river, was traditionally more important than marine fisheries. Before the founding of Portville, the coast of Western Province was virtually uninhabited, and the strong surf discouraged activities at sea. The principal ethnic group of Delta province, the Tiki, have always been known as skilled fishermen but seldom venture outside their brackish water environment, and then only to operate small beach seines.

The only marine fishermen of Equatoria have traditionally been the Toko of Eastern Province where small bays offer some natural protection against the dreaded surf. For most Toko, however, fishing has been a part-time activity and concentrated on simple line-fishing or used gill nets set in shallow water. Some have also specialized in catching lobster on the rocky bottoms offshore of Eastern Province. Even today, most Toko canoes are small, un-motorized dugouts carrying three men at the most.

A problem for Eastern Province fishermen has always been poor road communication with the rest of the country, a journey to Portville taking up to two full days. This has been a problem for marketing the fish, and it is only the highly valued lobster that attracts a few fish traders from Portville to make the long journey east to buy marine products.

Despite its 450 km coastline, Equatoria is not particularly rich in fish resources, due mainly to a narrow continental shelf covering but 11,000 sq km (see table I for the estimated MSY for its principal species). However, the presence of a small local upwelling area off the Western Province and which was first discovered by the Fisheries Research Centre (FRC) in Portville in the 1960's, boosts the resources of small pelagic species like sardinella and anchovy. The upwelling has been known to fail to appear about once in every decade.

During the first 15 years of independence, artisanal fisheries were given no priority at all in official development policies. Instead, a substantial industrial fleet was built up with base in Portville which in fact was mostly owned and run by European countries who paid only nominal fees to operate in Equatorian waters. Shrimp and tuna catches were exported, while most of the other fish was sold to the government of Equatoria in exchange for a substantial part of its mineral production.

After 1975, when the new government insisted to pay for the fish caught by the industrial fleet in local currency, most foreign controlled fishing vessels left the country. Those remaining were all owned by the National Fish Company which ran into increasing difficulties in maintaining its vessels in operating condition and to make a profit. Only the export-oriented tuna and shrimp operations remained largely unaffected.

At the same time, fishermen from the nearby nation of Tropica started to establish themselves in Portville and the coastal villages of Eastern Province. Tropican fishermen are well known for their fishing skills and operate from large motorized dugout canoes carrying between 10 and 20 men. Their main target has usually been small pelagics caught traditionally with large drift and encircling nets and later also with purse seines. Most of their catches are smoked except for anchovies which are mostly sun-dried. In Portville, this processing work is done by local women who at the same time act as the fishermen's "agents", providing them lodging, food, supplies and if needed also credit. In the villages in Eastern Province, it has been more common for Tropican fishermen to bring their own wives to do the smoking and drying.

As a consequence of the problems in the industrial fleet and the arrival of the Tropicans, artisanal fisheries has become as productive as the industrial sector in 1980 and continued to grow steadily until 1986.

In 1983, many Tropicans started to employ fine-meshed purse seines in order to catch the seasonal anchovy, provoking outcries from local Toko fishermen who claimed they were also catching juveniles of demersal species which are the main target of these fishermen. Some Toko also claimed the mobile gear of Tropican fishermen destroyed the fixed lobster nets of the Toko. Tropican fishermen, however, have always maintained it would be destructive for them to operate encircling gill nets and purse seines on the rocky grounds favoured by the Toko, and if they lost their lobster nets, this was more due to poor marking of their location for fear that somebody come and steel their lobster catches.

In 1985, following a gift of 800 outboard engines from Nippo, the government made a major effort to encourage Equatorian fishermen to engaged more actively in marine fisheries by selling the engines on credit at highly subsidized prices to Tiki and Toko fishermen. However, the attempt did not succeed : Tiki recipients used the engines almost exclusively to engage in transport of people and goods in the delta area, while many Toko sold the engines on, with a profit margin, to Tropican fishermen. Those local fishermen who kept the engines for fishing operations, found running costs to be too high to be able to repay their credit to the government.

In 1986, sardinella and anchovy catches showed a drastic decline, fuelling the fire for those who claimed the Tropican purse seines led to overfishing. Researchers at the CFR, however, published a study which showed that for the first time in 13 years, there was no occurrence of an upwelling in Equatoria, concluding that this was the main reason for the decline in pelagic catches.

In 1987, the strong measures taken by the new government also affected Tropican fishermen who were given 72 hours to leave the country. Most were forced to leave many of their belongings behind or see them confiscated by overzealous police and customs official. The following year, artisanal fish production in Equatoria fell to its lowest levels since the mid-seventies and the government could only partly replace the shortfall of fish through increased imports.

The government elected in 1987 was short-lived and was replaced in 1989 by a new one which opened up for foreign artisanal fishermen again, under certain conditions. With the 1987 events fresh in mind, many Tropicans were however reluctant to come back, but not all. In 1990, artisanal fish production had again increased, but not up to the levels of the record year of 1984. The same year, the Minister of Fisheries could formally open 5 community fisheries centre built with UN assistance in Eastern Province, two of them with their own ice plants. With the new highway due to be completed in 1992, fresh fish on ice could then potentially be transported from Eastern Province to Portville, a journey that will take about 8 hours.

Table I : Estimated Maximum Sustainable Yields in Equatoria

TABLE 2. EQUATORIA FISHERIES STATISTICS (IN TONS)

TABLE 3. MARINE ARTISANAL FISHING FLEET IN EQUATORIA

Appendix 4.2

ASSIGNMENT I

Ever since fishermen from Tropica started to come in some numbers, there have been occasional friction between them and the local Toko, but not too much as they have been targeting different resources.

With the introduction of the fine-meshed purse seine, however, there have been some incidents involving violence between Toko and Tropican fishermen. The former say the purse seine destroys their gear and catches juveniles of demersal species, while the Tropicans say that without the purse seine they cannot catch the anchovy which is one of the most appreciated foods in Equatoria. The anchovy usually appears for two or three months between August and November.

The year is 1983. As the ACAS fisheries team, you are called into Equatoria to try to settle the differences between the two groups of fishermen in collaboration with the Equatoria Dept. of Fisheries.

ASSIGNMENT II

The year is 1986. The Government of Equatoria has been distributing the 800 40 hp outboard engines to local fishermen through and ad hoc credit scheme in an effort to "modernize" the Tiki and Toko fisheries, but without much success. Both groups continue to fish as they are used to, i.e. the Toko in the estuaries and the Tiki in shallow-waters of the sea. Obviously, the introduction of large outboard engines is not enough to encourage local fishermen to change their traditional ways.

At the same time, Tropica fishermen are being blamed for overfishing, causing some ill-feelings against them, although the report from CFR seems to suggest that there are natural causes to the decline in catches.

CRF has also made some cost and earning calculations on the operations of both Toko and Tropican canoes, below are the average costs and incomes for each fishing operation ; including depreciation costs :

Cost per average fishing operation

Toko un-motorized canoe	100 Eq
Toko motorized canoe	500 Eq
Tropican motorized canoe	5,000 Eq

Income per average fishing operation

The government of Equatoria has already indicated that it may purchase more outboard engines to distribute to local fishermen and also that Tropican fishermen may be asked to leave in the near future. What would you advise.

ASSIGNMENT III

Politics is changing quickly in Equatoria. The foreign fishermen have been expelled only a few months after you last were on assignment. Now, in 1991, the new government considers letting Tropican fishermen into the country, but in a more controlled form. They would also like Tropicans to play an active part in training local Tiki and Toko fishermen.

Make suggestions as to how this can be done and outline directives for the future of Equatorian artisanal fisheries.

Appendix 4.3

Results of the Group Work

GROUP I

Situation I : 1983

1st action

Inform and sensitize the fishermen as to the difference between the two types of fishing carried out by the Tokos and Tropicans (lobster and small pelagics).

2nd action

Suggest to the Toko that they mark the position of their lobster-pots placed on rocky sea-bed so as to prevent them being unintentionally destroyed by the Tropicans.

3rd action

Check with the Equatoria fisheries department whether information is available on the different fishing zones, seasons and period of the year each type of gear is used.

If this information is non-existent, it would be useful to establish a system whereby it could be collected.

This information would allow the drawing-up of a fishing calendar for the Tokos and the Tropicans.

4th action

Suggest to the Tropicans that they plan their migration to Equatoria in periods not coinciding with the use of Toko gear.

Situation II : 1986

The FRC study reveals that the fall in production observed is caused by a natural phenomenon absence of upwelling) ; it must thus be explained to the Tokos that the Tropicans are also victims of this phenomenon's bad effect.

1. The profitability study reveals that the Tokos working the estuaries have only a limited fishing area and the net income of their motorized canoes is in fact negative, (-100 Eq) compared to the Tropicans' (+ 2,000 Eq). Therefore, it would seem sensible to suspend the sale of outboard motors on credit to Toko fishermen, as it appears that they are not prepared for motorization as yet.

2. The Toko fishermen should be trained to use engines, with help from the Tropicans. Afterwards, sales of engines on credit could be started again.

Situation III : 1991

1. Consult the Tiki and Toko communities and explain the contribution made by the Tropicans to fish supply in Equatoria and the problems with fish imports since the Tropicans were expelled.

2. Look into the conditions in which the Tokos would accept working with the Tropicans (i.e. have part of the processing and commercialization carried out by Toko women) and aim towards harmonious cohabitation.

3. Have the studies mentioned above carried out, that is in regard to the fishing zones, fishing seasons and periods of use of each type of gear.

4. In addition to the five community fishery centres, the Equatorian government should file a request to the United Nations for assistance in training national fishermen.

A fishery technician could outline the content of the training programme (training young Equatorian fishermen in fishing techniques, motor maintenance, management, etc...).

5. Train Toko fishermen's wives in processing techniques and connected activities.

6. Create easier access to credit for equipment and supplies for the groups of young Equatorian fishermen thus trained.

7. Reorganize the transportation and commercialization circuits.

 

GROUP II

Situation I

Group II considered that the best possible way to approach such a question as to start with an impartial familiarization mission to gather and record information, after having consulted existent references available on Equatoria.

1. Study and research mission

A. In the field

The different aspects of the real causes of the problem must be studied in the field consulting both the groups of fishermen and the Fisheries Department, and also request support from FRC. Criteria of research : mapping the different fishing zones in Equatoria.

There are three scenarios possible here :

1. The Toko fishermen are in the right ; their nets have been destroyed, in particular those gill nets set away from the rocky sea-bed.

2. The Tropican fishermen are in the right ; the nets were not "destroyed", it's merely a question of markers.

3. The two communities are partially right. The nets in question have been destroyed by the elements outside the two communities, (e.g. trawlers).

B. Urgent measures

Discussions with both communities, explaining the study to be undertaken, require systematic marking of the set nets and demand that the users of purse seines respect the right of first occupancy.

C. Implementation of the study and analysis of results

The aim of the study is to identify which of the 3 scenarios should be retained. It will be short-term, (one to six months) in collaboration with the FRC and the Fisheries Department.

The terms of reference are as follows :

Define the different fishing zones (for anchovy, lobster, demersal species), determine the fishing seasons and the schedules of going to sea and landing for the different kinds of fish; see whether there is spatial compatibility or incompatibility (seasonal or temporal) with regards to these different practices.

D. Recommendations

These are according to the imagined scenarios.

Scenario 1 (the purse seines destroy the gill nets)

1. use of visible markers

2. application of strict regulations to protect the gill nets

3. choice of the most appropriate rule to govern the use of purse seines so as to preserve their contribution to the community as well as to protect the gill nets.

Choice between :

• defining separate fishing areas
• defining distinct fishing seasons
• establishing different departure and landing times.

Scenario 2 (has no relation to the gill nets)

This scenario brings to light a deeper reason for discord than that apparent in the conflict itself. It necessitates two different types of measures be taken :

Immediate measures : explanation of the study's results, being particularly insistent with regards to the Tokos.

•  request the Tokos to place more noticeable markers on the gill nets
• request communal supervision of the fishing sites, possibly with the help of the Tropicans, as a gesture of goodwill

Medium-term measures (1 to 3 years) : launch an in-depth sociological and economic study with the aim of understanding the workings of each community and identify the causes of frustration, resentment or conflict other than those directly connected with maritime fisheries.

Scenario 3 (both communities are partly right)

The immediate measures are the same as in scenario 2.

A medium-term study should be carried out as the fact that the Tropicans were accused of a crime they did not commit suggests a climate of distrust that could be prejudicial in the future.

Situations II & III

Situation 2 served as a basis for recommendations of a general nature for the future of Equatorial fisheries. We can note several troubling factors in this particular situation:

40 HP power engines for fishing shallow waters are excessive

absence of consultations with the technical and research services

absence of socio-economic studies

Recommendations

1. carry out all the technical studies necessary to define the real needs of these fisheries before accepting such donations in the future. Specify the particular needs to the donor ;

2. include the migrant fishermen in the distribution of motor ;

3. measures should be taken by the Government to promote integration of the local and foreign communities, taking into consideration the impact of the latter on the environment and host communities ;

4. initiate intensive research so as to understand the fishing system as a whole and identify the different aspects of the problem and establish a realistic management and development programme.

GROUP III

Situation I

(Fishing conflict opposing use of fixed gear by local fishermen and mobile ones by the foreign fishermen)

Recommendations

1. Policies

 development of, and rendering accessible, the landing sites by the government in order to increase the quality and value of the catches of local fishermen ;

 check whether any regulations are in force pertaining to mesh-size ;

 fixed nets to be adequately marked.

2. Techniques

consult the research centre about the matter before taking any restrictive measures against the use of purse seines.

Situation II

 the modernization of fishing units must be in accordance with the fishermen's requirements, something which does not appear to be the case here ;

 the Government should identify the fishermen's real needs in advance ;

 modernization through acquisition of 40 HP outboard engines is not justified in this case considering the type of fishing undertaken by locals, namely set nets in near-shore waters and the utilization of small canoes not suitable for 40 HP engines ;

 the claim that the fall in production is caused by the foreign fishermen is not justifiable, which is also refuted by the results of research undertaken ;

 as to the decision taken at a later date by the Government to deport the foreigners, the following should be remarked :

o The local fishermen are unable to take over the whole artisanal fisheries sector ;

o In 1986, foreign fish production accounted for 85 % of the artisanal fisheries production ;

o The Government's decision to deport the foreigners will have a negative impact on the total amount captured ;

o The Government should concentrate on regularizing the position of the fishermen instead.

Situation III

•  To conduct a census of all fishermen (local and foreign) as well as their fishing units ;
•  Create structures allowing better control of the fishing effort ;
• Make landing sites accessible by the construction of roads ;
•  Introduce fisheries legislation covering :

•  access to the fisheries

•  fishing zones

•  types of gear used

•  size.

•  Setting-up of a structure of fisheries surveillance ;
•  Creation of an artisanal fishery development project with the aim of :

a) training fishermen

o to use the echo-sounders, compass and ice boxes for canoes using lines

o to use of different types of fishing gear

o about saving schemes

o in the management of fishing units

b) improving fishing and processing techniques

c) facilitating access to credit for fishermen.

The project will also be directed at migrant fishermen.