The Consultation on the Management of Fishing Capacity, Shark Fisheries and Incidental Catch of Seabirds in Longline Fisheries recommended¹ that the Fisheries Department should prepare a proposal identifying the activities it considers appropriate to carry out in support of the implementation of the conclusions reached by the Consultation. It also requested that the Regular Programme and extra-budgetary resources needed for such activities should be identified and included in the proposal. This document is prepared in response to this recommendation and submitted for consideration by the Committee. In the remainder of this document the proposal is referred to as the FAO programme of support to the Plans of Actions/Guidelines concerning management of fishing capacity, shark fisheries and the incidental catch of seabirds in longline fisheries (CSS Support Programme).

Content. The content of the CSS Support Programme follows closely the conclusions reached by the Consultation. Therefore, when first described in this document the activities have been referenced to the appropriate paragraphs in the report of the Consultation.

The activities are of two kinds. The first category consists of those that address normative issues. Often these are common to many countries. It will be the task of Fisheries Department staff to address these issues in collaboration with experts in government and civil society. They consist basically of support for research, development and training in relevant subjects and monitoring of plan implementation. Technical assistance to individual countries and to regional fisheries organizations/arrangements for the development and implementation of plans of action consitute the second category of activities. These two categories of activities are mutually supportive. Implementation of one category af activities without the other will have a limited effect.

In developing the CSS Support Programme the Fisheries Department has had to make the following preliminary decisions concerning the programme’s size, duration, source of funds and phasing:

Size and duration. The basic premise is that there is a minimum duration and size for each sub-programme. It should not last less than two biennia; probably it will be needed longer. Given the general scarcity of resources the Department has designed the sub-programmes so that they are equivalent to what the Department believes to be the minimum required in terms of activities, resources and duration.

Source of funds. It is desirable that the CSS Support Programme, and the resources supporting it , should be part of the Organization’s Regular Programme. Access to Regular Programme funds would make long-term commitments more realistic than if the programme relies on extra-budgetary funds for its execution. However, this does not mean that extra-budgetary funds are not welcome. If provided, they would enable Regular Programme resources to be allocated to other priority activities.

Phasing. The limited availability of resources to FAO and to Members determine the scheduling of activities. During 1999 FAO has a limited amount of Regular Programme resources to dedicate to the Programme – essentially a continuation of staff inputs at the levels recorded for 1997 and 1998. The Organization also has the promise of the use of some extra-budgetary funds provided by the United States and Japan. The Regular Programme funds and the extra-budgetary funds will permit it to prepare for the CSS Support Programme. However, the programme itself will only start in the 2000-2001 biennium. It is expected that in the 2002-2003 biennium funding requirements will be somewhat lower than in the preceding biennium.

In the course of 1999 the Fisheries Department intends to finalize, translate and publish technical guidelines, one for each of the three subjects. In addition, three documents² will be published related to sharks. An expert meeting will be organized on measurement of fishing capacity. A study of factors contributing to over-capacity will be initiated. The total cost of these activities are estimated to about US$290 000. These activities will be carried out to the extent that extra-budgetary contributions are available to cover costs other than those of FI staff, and in fact most of such contributions are available.

1. FAO activities in support of the international plan of action for reducing incidental catch of seabirds in longline fisheries

With respect to the International Plan of Action for Reducing Incidental Catch of Seabirds in Longline Fisheries (IPOA-SEABIRDS), it is proposed that the Department undertake the activities listed below with estimated cost as provided in the accompanying table.

Activity 1: Technical assistance to States which develop a National Plan of Action (NPOA-SEABIRDS) through (see paragraphs 12 and 23 of FAO Fisheries Report FIPP/R593 [tri]):

• creating and maintaining a Web-page on seabird/longline technical information including an updated list of experts, and

• in-country assistance

Activity 2: Assistance to States in coordination of research, training and production of information and

promotional material (paragraph 20).

Activity 3: Reporting to COFI (paragraph 24)

A four-year programme is proposed. It will start in 2000. The resource requirements are indicated in the table below.

The funds identified for activities 1 and 2 will make it possible to provide in-country technical support to ten countries in the preparation for and implementation of a plan of action in the course of the biennia.

The activities outlined below are explicitly aimed at the goals of the Plan of Action for the Conservation and Management of Sharks. Although the activities are spread among several Services a large portion could be undertaken by a single person. For this reason, the recruitment of a staff member is proposed.

The five main activities which are envisaged are described below followed by a summary of resource requirements.

Activity 1: Upgrading of the quality of reported catch landings statistics (para. 21³)

This activity will be implemented starting with technical correspondence with countries as appropriate. This should lead to dialogue and identification of problems at the national level. It is likely that if there is little or no data collection of elasmobranch landings, there will be no management of this group. Thus someone will be needed to look at the data, undertake correspondence with the respective countries, and provide advice. The lead Service for this activity will be: Fishery Information, Data and Statistics Unit (FIDI). The resources required are as follows:

• A temporary staff at P3 level for 2 months/year for a period of four years

• Funds for travel to 5 - 10 countries to follow up on correspondence relating to data reporting practices

Activity 2: Upgrade trade data reporting practices (para. 21)

The activity will be implemented based on: correspondence with relevant organizations; participation in annual and special meetings that address relevant issues; preparation of appropriate position and strategy documents. The lead Service for this activity will be: Fish Utilization and Marketing Service (FIIU).

The resources required consist mostly of a temporary staff at P3 level for 2 months/year for a period of two years.

Activity 3: Elasmobranch species identification guides (paras. 21,22)

The activity will be implemented mostly through contractual arrangements. Funds are required for contracting international taxonomic experts. At present, preparation of species guides for the batoids (skates and rays) is urgently required. More specialized regional guides are also required. The lead Service will be: Marine Resources Service (FIRM).

Activity 4: Stock assessment of sharks (paras.21, 22, 29, 30)

The activity will be implemented through:

• The provision of technical assistance to management authorities seeking or willing to accept assistance;
• The preparation of stock assessment methodology texts (based on existing proposals) with specific attention to the problems relating to sharks.

The lead Service will be: Marine Resources Service (FIRM). Resources requirements will include: additional manpower consisting of an expert in stock assessment with particular emphasis on sharks (five months/year for four years); and travel funds to enable the expert to attend regional fisheries organization meetings and the meetings of other appropriate organizations.

Activity 5: Elasmobranch (strategic) management, conservation planning and operational management (paras. 21, 22, 30)

The activity will be implemented through the provision of advisory services and directed consultancies. The lead Service will be: Development Planning Service (FIPP). Resource requirements will consist mostly of an appropriately qualified expert for 3 man months/year.

2.2. Resource requirements

A four year programme is envisaged, using either Regular Programme or extra-budgetary resources as indicated below.

2.3 In-country technical support

The funds identified for Activities 3, 4 and 5 in the biennium are expected to make it possible to provide in-country technical support to six countries in assessing fishing capacity and in preparing a plan of action for conservation and management of sharks.

In support of the implementation of the "Guidelines/Plan of Action" [G/POA] for the management of capacity, the Department will undertake two related programmes, in line with the explicit requirement of the G/POA: a short-term programme aimed at providing technical support for specific activities to be completed urgently, and a medium term programme in support of strengthened monitoring and longer term assistance with the implementation of the G/POA. Specific activities are indicated below, with reference to the foreseen time frame and the relevant paragraphs of the G/POA.

Three activities that are expected to last for two years:

Activity 1: Elaboration of technical guidelines for data collection and analysis for the measurement and assessment of fishing capacity. [para. 12⁴]

Activity 2: Collection of information and data for studies and analyses of various factors contributing to overcapacity in fisheries. Such factors would include, inter alia, unsustainable fishery management techniques, lack of input or output control and economic incentives contributing to excess capacity. [para. 45]

Activity 3: Organization of a technical meeting on the effects of transfers of fishing capacity ("spillover effect" and vessel disposal practices) at regional and global levels with a view of addressing prevailing trends, consequences for fisheries management and conditions of more effective control. [paragraph 20 of main text of FAO Fisheries Report No 593]

Seven activities that are expected to last for three to four years:

Activity 4: Establishment of an international record of fishing vessels operating in the high seas, following the model indicated in the FAO Compliance Agreement. [para. 18]

Activity 5: Strengthening of FAO fleet monitoring system (data quality; standards for records of fishing vessels; monitoring of high seas catches; expansion of coverage; development of more advance systems; regular analysis). [paras. 15 ,16 and 32]

Activity 6: Development and implementation of collaborative research programme on fishing capacity, with emphasis on monitoring, management methods and reduction. To be implemented in collaboration with national and regional fishery research organizations. [para. 28]

Activity 7: Development of training material and documentation on monitoring, management methods and reduction of fishing capacity. [para. 28]

Activity 8: Contribution to regular assessment of fishing capacity at global level, in collaboration with regional fisheries management bodies. [para. 15]

Activity 9: Monitoring and facilitating the exchange of information about the activities of fishing vessels which do not comply with measures adopted by regional fisheries organizations. [para. 35]

Activity 10: A special programme for in-country technical assistance. [paras. 46 and 47]

The implementation of the short-term and medium-term programmes requires a significant involvement of Regular Programme staff. The creation of a new post is proposed so as to avoid affecting other programmes by attempting to re-allocate existing staff time and to benefit from specialized high level technical support.

The table below presents budgetary information for the short and medium-term programmes, for the implementation of the International Guidelines/Plan of Action on Management of Fishing Capacity.

Table 3: Sub-programme on fishing capacity: budget for the biennium 2000-2001

As discussed above, Activities 1, 2 and 3 constitute the short-term programme. They are scheduled to last only during the biennium 2000-2001. Activities 4 to 10 are scheduled to last into the 2002-2003 biennium. The budget during that bienium will be somewhat below that indicated above for the 2000-2001 biennium, probably of the order of US$1.5 million.

The funds identified for Activity 10 in the biennium are expected to make it possible to provide in-country technical support to 12 countries in assessing fishing capacity and in preparing a plan of action for monitoring and controlling fishing capacity. A programme manager (P5) and a secretary (G5) are essential for this programme and should be recruited. The budget has been calculated assuming that the average in-country technical support will include one national seminar, 3 m/m of international expertise shared among fishing technology, fish stock assessment and fishery policy/management formulation. The support would last for at least two years and include at least two missions.

4. CSS Support Programme budget for 2000-2001 and its allocation between normative and technical assistance activities

The minimum CSS Support Programme requires about US$2.93 million for its execution during the 2000-2001 biennium. This is equivalent to about 7.6 percent of the 1998-1999 Regular Programme Budget for the Fisheries Department. It is projected that the need for funds will be somewhat lower in the succeeding biennium.

A little less than two thirds of this budget would be spent on in-country technical assistance activities. The breakdown of the budget, in US dollars, for the biennium 2000-2001 is as follows:

5. Alternatives for the CSS Support Programme

5.1.1 Funding

There could be two sources of funds for the CSS Support Programme in 2000-2001: the regular budget and voluntary countribution by governments and other entities (extra-budgetary funding).

Using the Medium Term Perspectives⁵ the Fisheries Department at the end of 1998 identified and tentatively costed the activities (in the form of "programme entities") it proposes to carry out in the biennium 2000-2001. A few of the proposed programme entities include major components of normative work on fishing capacity, conservation and management of sharks and incidental catch of seabirds in longline fisheries. About US$275 000⁶ were identified as needed to finance these activities. Thus, if the CSS Support Programme, as proposed, is to be funded by the Regular Programme budget additional US$2.65 million are needed. This is approximately equal to 90 percent of the total cost of the CSS Support Programme.

It appears that the following basic funding alternatives are open for consideration by the Committee on the assumption that the zero real growth budget will be adopted for the biennium. In considering them it should be recalled that for a number of Members the effective implementation of the plans of action depend upon both technical and financial assistance.

Alternative 1. US$2.65 million are transferred to the CSS Support Programme from other parts of the Organization, thereby respecting the zero real growth for the Organization as a whole, while assuring an increase of the same amount in the Regular Programme budget for the Fisheries Department.

Alternative 2. US$2.65 million are assigned to the CSS Support Programme from the projected zero real growth budget for the Fisheries Department. If so, the Fisheries Department would need to eliminate or defer activities for the same amount from among the activities currently planned for the 2000-2001 biennium.

Alternative 3. A combination of alternatives 1 and 2. That is, the US$2.65 million of the CSS Support Programme budget could be obtained through a net increase in the regular budget smaller than US$2.65 million. The balance would need to be obtained by eliminating or deferring some of the activities presently planned for the next biennium.

At the time of writing the Department does not dispose of any extra-budgetary funds for the CSS Support Programme in 2000-2001. This does not preclude the possibility that such funds be made available. Some Members may wish to indicate such possibility, and the Committee may advise the Department on the use of such funds.

The Fisheries Department considers the CSS Support Programme to be appropriate both in terms of content and size. However, should the Committee not share that view and want to reduce the programme in size. it is possible to eliminate some individual activities. But since many activities are linked to others, only a few activities can be eliminated without endangering the result of others.

The over-all budget can also be decreased by reducing the size of activities. An obvious exemple is the in-country technical assistance. However, the effect is basically to slow down the implementation of the plans of action. The same effect would tend to appear if normative activities are reduced in size.

The Committee is invited to review and advise on the size, contents and phasing of the CSS Support Programme, and on its funding.