84. The Workshop was organised by the Directorate General of Fisheries of Indonesia. The list of participants is shown in Appendix 2d.
85. A welcome and inaugural address was given by the Director General of Fisheries of Indonesia, Mr. Untung Wahyono. He introduced the Indonesian fisheries, the recent re-organization of the Ministry and stated clearly that reduction of bycatch in shrimp fisheries is a priority goal. The Chief of Fishing, Sub-Directorate of Fisheries, Mr Gomal H. Tampubolon, acting as local secretariat, introduced some of the issues related to shrimp fisheries in Indonesia.
86. The main contributions in the first working session were from the two core participating countries; Philippines and Indonesia which provided detailed information on the shrimp fishing industry in the two countries extracted from the National Reports prepared within the Project Development and Preparation phase.
87. Philippines's catch of shrimp (excluding aquaculture production) is approximately 32 000 tonnes. White shrimp (P.merguiensis), tiger shrimp (P.semisulcatus) and endeavor shrimp (Metapenaeus ensis) are the most important species together with the smaller Acetes species, which in weight constitues 34% of the total catch . The fleet consisted, in 1997, of 445 trawlers (62% classified as small-commercial (i.e. 3.1 to 20 GT); 37% medium commercial (2.1 to 150 GT) and 1% large-commercial (150,1 GT and above). Although the trawl is the most common fishing gear for shrimp, it is also traditional to catch shrimp with gillnets.
88. Discard rates are unknown, but are likely to be relatively small as there is a market for most of the captured fish. Crab and shrimp with eggs are normally discarded. It is anticipated that significant proportions of fish bycatch consist of juveniles from valuable food fish species. Phillipines has developed a set of regulations, but enforcement of these was considered a problem. It was clearly stated by the National Coordinator that the local community needs to have stronger involvement in the development and introduction of a more responsible fishing practice for shrimp. The national committee, which was established to prepare the national report, suggested several activities aimed at improving the situation with shrimp exploitation in the Phillipines. These are to a large extent reflected in Tabel 5.
89. Indonesia's trawling for shrimp is restricted to the Arafura Sea (Eastern Indonesia) by a 1982 law. The shrimp catch from that area was approximately 20 000 tonnes in 1996, which is 10% of the total catch in that area. The remaining catch includes landed as well a dicarded bycatches, mainly of fish. Penaeids are the main component of the shrimp catches; Banana shrimp (P.indicus,P.merguiensis) 35.1%; tiger shrimp (P.semisulcatus) 23.6 %; endeavour (Metapaneus ensis) 23.2 % represents the main share.
90. The trawler fleet consisted in 1996 of 431 vessels from 19 to 849 GT. Three types of trawl riggings are used; singel trawl towed from the stern of the vessel, outrigger twin trawls (two trawls) and outrigger quad trawls (four trawls). According the the presidential decree No. 085/1982 all units should be equipped with a Bycatch Efficency Device (BED), which is a modified form of a Turtle Excluder Device (TED).
91. Generally, the shrimp/bycatch ratio is 1 to 8-15. The yield from shrimp has more or less levelled off for a long period of observation but fluctuation are observed from year to year. The catch of demersal and pelagic fish slightly increase. The estimate is, for 1998, around 200 000 tonnes of bycatch, of which 170 000 tonnes were discarded. Nearly 2/3 of the total landings consist of fish. A recent biomass estimates of shrimp indicates a total annual production of 48 000 tonnes. The need to improve the identification of fish and shrimp, particularly juveniles was stressed
92. In Indonesia much of the bycatch is discarded mainly because the fishing grounds in the Arafura Sea are very far from possible markets and while the collection of bycatch at sea has only recently been auhtorized. More recently an ordinance was put into force requiring vessels to bring all the catch to shore
93. An opinion survey among affected stakeholders was carried out regarding the different aspects of shrimp fisheries, problems and solutions concerning bycatch, fisheries mangement, related research, etc. The conclusions of this consultation with the industry show that more careful management of the fisheries is required, perhaps with closure of areas and seasons, and the industry should adopt technologies yielding reduced discards.
94. The participants from Malaysia, Thailand and India were invited to briefly present the situation of the shrimp fisheries in their countries.
95. In Malaysia there is a no-trawling zone inside 5 nm from the coastline. Gradually larger vessels are allowed to fish in the zone 5-12 nm and beyond. As most juvenile fish are found inside the 5 nm limit the problem of juveniles in the trawl fisheries was considered to be a minor problem.
96. In India a large number of small trawlers, less than 20 m long, known locally as "mechanized boats" carry out bottom trawling for shrimp and fish; many of them during day trips, not so far from the coast. As a result, there are now very serious conflicts with small-scale fishermen using passive gear. On-going discussions aim to define "zonations" for the various fleets and activities but a lack of enforcement facilities, which already seriously hinders the management of fisheries will make things difficult. A serious concern was expressed concerning the recent development of "mini pair trawling" by boats of 7 - 8 m, less than 19 hp, in very coastal waters. Turtle excluder or other bycatch reduction devices are not used in India; an on-going small GEF project aiming at the introduction of TED in Orissa was mentioned. It was suggested that a national workshop for industry and interested groups be organized in India to increase awareness in general and lead to relevant specific activities funded by industry. The enforcement of regulations in India is presently poor.
97. The representative from the Southeast Asian Fisheries Development Center (SEAFDEC) briefly reported on recent activities of the Center in the region for the development of bycatch reduction devices, such as Thai Turtle Free Device (TTFD) and Juvenile and Trash Excluder Devices (JTEDs). Experiments and demonstrations have been carried out so far in Brunai, Indonesia, Malaysia and Philippines; others are planned soon in Vietnam. SEAFDEC has almost completed the preparation of a Training package for fishermen concerning the use of TED. With the objective of reducing juveniles in catches, the question is still what is the most promising option: an increase in meshsize in the codend or development of a specific device? In respect to the first option, it is worth reporting the experience in north Australia: the local Government had requested an increase in the meshsize, from 40 to 60 mm, with the guarantee that if no improvement in the yield was observed within three months, a return to the smaller mesh would be authorized; however, fishermen observed that trawling with larger mesh in the codend was more effective because, with less drag, the towing speed was higher (with the same fuel consumption) and the catch of large fish increased. In the Philippines, the utilization of square mesh seems promising. Participants were of the opinion that adjustment of mesh size is the best solution and the easiest to be controlled. It was observed that this choice between technical options depends not only on technical aspects but also means of control. The SEAFDEC expert observed that the critical point is the loss of income resulting from escapement through any BRD (which was calculated precisely, in commercial fishing conditions, during the development of the various devices). He also pointed out that another critical point is proper communication with industry to explain and motivate people. SEAFDEC informed the group that they will organize a Workshop on "Selectivity and the utilization of TED in Asia" by the end of November 2000.
98. It was observed that the mandatory meshsize for the codend of a shrimp trawl is in all countries of the region rather small: 27.5 mm in the Philippines, 30 mm in Indonesia and Malaysia.
99. Pushnet is a fishing gear very commonly used in several countries of Southeast Asia, in particular for fishing Acetes, a small sized shrimp. Very small meshes are used. In principle, pushnet are even banned in some coastal waters (Malaysia). Such pushnet fisheries for Acetes are a problem (which is, to a certain extent, similar to the one resulting from large utilization of stownet/bagnet, for instance in Bangladesh, India, Southeast Asia and China). Various solutions were considered: - making the fisheries more seasonal, issue of special authorization; - increasing the meshsize of the nets; - proposing alternative fishing gear. Regarding this last solution, it was emphasized that when a fishing gear widely used in small-scale fisheries is banned, it is very important that, at the same time, good alternatives are proposed for the sustainability of the livehood of small communities.
100. Other fishing gears much in use for shrimp, large size in particular, are trammel nets and gillnets. While it is observed that the catch with such nets is normally much less than with a trawl (an estimate of half to one third), when the yield with trawl decline by the end of the season, it is in many cases profitable to use trammel nets or gillnets to target, often on the same fishing grounds, large, high value, shrimp. The selectivity of these fishing gear is in general considered pretty good but some bycatch (crab, shark) is observed.
101. In this connection it was observed that, in many areas, "shrimp trawling" is in fact more and more "multi-species fishing" and at the same time the distinction between "shrimp and fish trawl" is difficult.
102. Philippines stated that more data/information on resources and impact of fisheries is a pre-requisite. A lack in this respect explains the lack of participation and poor implementation of management plans by local communities.
103. Indonesia called for an improvement of the management of the shrimp fisheries; Philippines for regulation enforcement and several participants insisted during the discussion on the need for a clear policy of local governments in respect to environment protection and sustainable fisheries. In connection to policy and strategy for its implementation, it was stated that there is a need, in several countries, to strengthen professional organizations as positive partners in negociation with the authorities and as a guarantee for implementation.
104. The need for exchange and cooperation between researchers and fishermen was stressed as a condition for any introduction of new technology.
105. A panel discussion on "How to meet the Costs related to the Introduction of environmentally friendly techniques and practices toward Responsible Shrimp Fisheries - the Role of Financial Institutions, Government and Fishing Industry." was included in the Agenda of the Workshop. Investments in the fishery sector are in many cases supported by potential buyers of catch, fish traders and processors, by fuel suppliers, other sources, which may add, in certain cases, to a special grant from the Government willing to promote the development of certain fisheries and types of vessel. Fisheries are considered by bankers as high risk activities. Loans are given, in Thailand, preferably, on land property guaranty rather than vessel. The financing from banks seems restricted to large fishing companies having "good profit image".The interest rate in Indonesia was 18-22%
106. Similarly, in the field of insurance, companies are often reluctant to take risks in the fishery sector (while it was observed that the "business risk" is in many cases already covered by the support to investment provided by fish buyers or other suppliers).
107. It was stated that if a potentail risk is perceived, high return can at the same time be expected. In Thailand, there would not be more profitable investment than in fishery! In Indonesia also, fishery is considered as a sector safe from the economical point of view. An evidence since a foreign country, Denmark, gave recently loans to private fishery sector (with a guarantee of the government).
108. No bank will ever support a loss of income but the Government which has not only economic but also environmental and social responsibilities should be in a position to support an adjustment of technology aiming at the safe sustainability of certain fisheries, possibly with international funds (as has been done on several occasions for the establishment of national parks). However, regarding the involvement of banks, the question was raised about the possibility of some kind of sponsorship for environment protection by large banks. Also, in order to prevent a potential social clash, banks may be invited to provide funds to ensure sustainability of the employment in the fishery industry when threaten by the non-sustainibility of the resources.
109. When referring to the implementation of a new bycatch reduction technology, it was pointed out that the investment involved should not be too high and it is considered that the critical point is, to a large extent, to convince fishermen of the effectiveness of the technology and of the potential (medium term) benefit of its utilization; once this is done, some incitement from the fishery authorities may be enough and fishermen may pay for the device itself. In connection to this a comparison was made between the people exploiting wood in forests who have to contribute to re-foresting and fishermen now catching juveniles with shrimp being invited to act to safeguard the sustainibility of their activity. The possibility of a "shrimp tax", as already proposed for shrimp aquaculture, to clear environmental aspects was mentioned.
110. In the introduction of the agenda item dealing with possible elements of the main phase project, FAO clearly stated that commitments from the participating countries, both financially and in policy, is a requirement to be considered for participation in follow up activities. We also advised that GEF funding is restricted to so-called "incremental costs" meaning the cost of an activity beyond the national ones initiated to achieve a global environmental objective.
111. As already stated, it was suggested to consider seriously the increase of mesh size in the codend as an effective solution to reducing the impact in general (especially when this leads to increased catch of large fish compensating for the loss of small fish/juveniles).
112. The optimal utilization of unavoidable bycatch should also be considered, with some priority to the production of high quality products for human consumption.
113. National Committees exist in several countries (including those set up within the actual project) and the strengthening of such structures is considered as essential within the implementation process for the proposed project.
114. The representatives from Indonesia and from Philippines, with input from SEAFDEC, produced separate tables with the details of the activities they consider suitable, including, in most cases, a precise estimation of the costs and proposals for the funding of each of them (with contributions from governments and private sectors). Shorter versions of these tables are shown in Tables 4 and 5.
115. Indonesia considers that for the shrimp fishery in the Arafura Sea the effort should aim to reduce fishing effort in general and, possibly the utilization of bigger mesh. They recommended a strong involvment by the private sector, including a continuing consultation process, provision of feed-back to industry after activities have been carried out and evaluation of results.
116. Philippines among several other proposals, recommended testing of a quick sorting device to be installed on deck to decrease discards of dead fish and they proposed shrimp gillnets/trammel nets as alternative fishing methods to the trawl.
117. SEAFDEC indicated a strong interest in cooperating with FAO in the execution of the project now under development. Considering the capacities and on-going programme of this inter-governmental organization, such support is considered essential and SEAFDEC could play within the project a leading and coordinating role for the region.
118. Because of the amount of work to be achieved concerning various aspects, a number of participants estimated that to reach substantial results, the programme to be developed should last at least three or, even better, five years.
Table 4 Identified problems and proposed activities to be included in the main phase project for Indonesia
Problem |
Impact |
Project activities |
Output |
Groups involved |
Implementing/funding agency |
I. High level of bycatch and discarding of unwanted catch |
- Wastage of valuable fish for food
|
- Selection and testing of suitable technologies to reduce bycatch (BRDs, mesh sizes, square meshes, towing time and towing speed)
|
- Effective technologies to be implemented |
- Fishing industry
|
National government
|
II. Declining shrimp catch per unit effort |
- Reduced profit from shrimp fishing |
- Resource surveys using fishing vessels |
- Total allowable catch (TAC)
|
- Fishing industry
|
National government
|
III. Habitat destruction |
- Destruction of bottom habitats |
- Surveys of bottom configuration |
- Knowledge of bottom habitat condition |
- Fishing industry
|
National government
|
IV. Lack of information system an insufficient skill/awareness of stakeholders to apply management measures |
- No implementation |
- Establish and empower information system
|
- Data base and information system
|
- Fishing industry
|
National government
|
Table 5 Identified problems and proposed activities to be included in the main phase project for the Philippines
Problem |
Impact |
Project activities |
Output |
Groups involved |
Implementing/funding agency |
I. Capture of juveniles and discarding of bycatch |
- Non-sustainable fishing practice |
- Research and development for juvenile and turtle excluder device ( design, testing, evaluation of results, formulation of regulations, introduction to the industry)
|
- More sustainable shrimp exploitation |
- Fishing industry
|
National government
|
II. Disturbance of bottom habitat |
- Bottom habitat destruction |
- Survey of the impact on bottom habitat of the trawling activities |
- Knowledge about the quality and degree of impact on bottom of trawling activity |
BFAR |
National government |
