This discussion paper has been prepared on behalf of the Advisory Committee on Fisheries Research (ACFR) of the Food and Agriculture Organization (FAO) of the United Nations. Human capacity development in fisheries is increasingly recognized as a high priority, especially with respect to meeting the targets set by the World Summit on Sustainable Development in (i) the areas of global reporting and assessment of the state of the environment by 2004, (ii) elaborating National Plans of Action (NPOAs) for combating illegal, unreported and unregulated (IUU) fishing by 2004 and for reduction of fishing capacity by 2005, (iii) applying the ecosystem approach by 2012 and (iv) maintaining or restoring fish stocks by 2015. A special focus on human capacity development is also important because of new approaches to fisheries management, such as the ecosystems approach and a more inclusive management process, which require levels of capacity which were not previously necessary. It is also important because of changes in the international development context driven by the failure of many previous development initiatives and the realization of the key role that capacity development must play in supporting sustainable development.
The paper first presents some conceptual ideas about what capacity development is. It is suggested that capacity exists, and needs to be strengthened at, four levels: in individuals, in organizations/institutions, in sectors and networks, and in the overall environment in which the first three function. Initiatives must take a holistic/systemic view of the context in which individuals operate. Capacity development is also a process, whereby individual development becomes embedded in a sustainable shift in performance and collective behaviour.
While recognizing that capacity development needs will be case/initiative specific, it is possible to identify a range of capacity development areas that might require support. These can be grouped into three "pillars" depending on whether they relate to: fisheries science, research and development; fisheries sector management; or wider non-fisheries specific societal skills and knowledge as part of the enabling environment.
Past approaches to capacity development (both in fisheries and other sectors) have tended to focus primarily on technical support through training to individuals/institutions in science, research and development, and on the institutional capacity of government recipients of aid where institutional weakness was seen to threaten overall project success. Less attention was paid to non-sector specific skills and knowledge such as management, business administration, governance etc. A number of key lessons are drawn from previous activities. Most important are that:
Capacity development initiatives must be participatory in design, implementation and monitoring. Initiatives must build on core-capacities and be a two-way process of knowledge transfer.
Initiatives must provide for flexible and suitable learning pathways.
Approaches must take greater cognizance of the overall societal/political context in which initiatives operate.
There is need for much better integration of initiatives based on regional/geographical, intrasectoral, intersectoral, and vertical linkages.
Appropriate incentives must be built into capacity development initiatives.
Those delivering capacity development may themselves require capacity development for effective delivery.
A review of current development approaches suggests that in fisheries greater emphasis is now being placed on capacity development in areas such as the ecosystems approach to fisheries, the Sustainable Livelihoods Approach (SLA), poverty assessments, and on issues of governance and wider generic, non-fisheries specific skills and knowledge. Other sectors are also now concentrating more on the overall enabling environment.
There are a wide range of possible delivery mechanisms that can be used for capacity development, and which can be usefully categorized into face-to-face mechanisms and remote mechanisms. Face-to-face mechanisms include: classroom-based training, seminars, conferences and workshops, research programmes, exchange programmes, demonstration trials, on-the-job training. Remote mechanisms include budget/programme support, publications, manuals/training material, radio, mentoring, distance-based training/learning, and mechanisms based on information and communication technology (ICT). Almost all are being used in the fisheries sector, with increasing emphasis on remote, internet-based approaches as demonstrated by some interesting examples. However, it is argued that traditional mechanisms remain vital, even if the way they are structured and delivered requires some change, especially with regards to more participation by beneficiaries. It is increasingly recognized that mixed use of mechanisms may be appropriate, and that mechanisms may need to be delivered through partnerships of service providers.
A strategic framework for capacity development in fisheries is then presented for consideration by the ACFR. It is based on certain key principles and conceptual models about what capacity development is. Eight strategies are presented in support of an overall objective defined as "to improve the ability to manage the sustainable exploitation of aquatic living resources for the benefit of all mankind". Strategies are based on capacity development efforts concentrating on the four levels of capacity defined, and on the three pillars/groupings of capacity development areas. They also include a) extensive use of partnerships and linkages between donors, beneficiaries, and service providers, b) careful selection of mechanisms and providers to meet capacity development needs, c) increased measurability of the initiatives, and d) better strengthening of capacity development approaches. The paper specifies a number of actions to support each strategy, as well as a practical checklist of aspects to be considered by any capacity development initiative. The potential role of FAO within the overall strategy is assessed, and it is considered that FAO could play a key role in supporting a number of the strategies.
Finally the paper makes some recommendations on research topics related to capacity development in fisheries.
