1. The Sub-Committee for the Protection and Development of Fisheries in the Sahelian Zone of the Committee for Inland Fisheries of Africa (CIFA) held its Third Session from 6 to 9 October 1986 at the Continental Hotel, Accra, Ghana. The Session was attended by representatives from five member countries of the Sub-Committee and by observers from Benin, Ghana, the West African Economic Community (CEAO) and the Lake Chad Basin Commission (LCBC). The list of delegates and observers is given in Appendix C.
2. The Session was opened by Mr E.M. Commodore-Mensah, Under-Secretary of State for Agriculture who welcomed the participants. In his opening speech, Mr Commodore-Mensah noted that Ghana's acceptance to host the Third Session of the Sub-Committee, although not itself a member of this group, was understandable in view of Ghana's appreciation and concern for the problems of her sister countries of the Sahelian zone. The Sahelian drought, he asserted, also seriously affected agricultural production, including livestock and fisheries, in northern Ghana. Hence Ghana would benefit from participation in the Session. He said that Ghana would follow very closely the proceedings and recommendations of the Session in order to prepare itself against any future ecological catastrophies similar to the 1983 drought.
3. Mr Nadir Doumandji, FAO Deputy Regional Representative for Africa, addressed the Session on behalf of the Director-General of FAO, Mr Edouard Saouma, and the Assistant-Director General a.i. (Fisheries), Dr Armin Lindquist. He thanked the Government of Ghana for hosting this Session, even though Ghana was not a member of the Sub-Committee, and for the warm hospitality extended to the participants.
4. Recalling the severe economic crises and hardship encountered by Sahelian countries as a result of the prolonged drought, Mr Doumandji noted that the Session was being held at a critically important moment in the history of the Sahel. He thanked the international community for its generous support for alleviating the food crisis in the area, but advised governments within the sub-region to reassess and readjust their priorities and realign their developmental policies so as to ensure that future disasters, such as drought, would not find them totally unprepared. He emphasized the importance of regional cooperation, especially in coordinating efforts and channelling external technical assistance, and impressed on the Sub-Committee the need to play a leading role in the promotion of this cooperation among its member States, in liaison with existing regional and sub-regional groupings, such as the Permanent Interstate Committee for Drought Control in the Sahelian Zone (CILSS), the West-African Economic Community (WEAC), the Economic Community of West-African States (ECOWAS) and the Organization of African Unity (OAU). He reiterated FAO's readiness to assist Sahelian countries in their effort to rehabilitate their fisheries, which had virtually collapsed. Finally, he expressed the hope that the work of the Sub-Committee would create an appropriate framework for the formulation of national policies and strategies for improving the future performance of the fisheries sector in the Sahelian zone.
5. The Sub-Committee unanimously elected Mr Moriba Koné of Mali as Chairman and Messrs Momar Diagne of Senegal and O.K.L. Drammeh of the Gambia as Vice-Chairmen.
6. The Agenda was adopted as given in Appendix A. The documents presented to the Session are shown in Appendix B.
7. As consultant to FAO, Mr Moriba Koné summarized the findings of his mission to examine the inland fisheries situation in Sahelian countries. There had been a considerable decline in fisheries throughout the region since the onset of the Sahelian drought in the early 1970s. This was caused by changes in the hydrological regime with the partial desiccation of Lake Chad, the failure to flood most of the floodplain and the seasonal drying-out of water courses. The decline in the fish stocks had led to the withdrawal of many fishermen from the fishery or to their migration elsewhere, lowering of the living standards of riverine populations and a shortfall in animal protein supplies from aquatic sources. Following better rainfall and flooding patterns in the last two years (1985–86), the fisheries had responded rapidly, indicating the resilience of the fish stocks. These improved climatic conditions, perhaps, indicate that the dry phase of the last 12 years may be drawing to a close and when planning for the future, this should be borne in mind.
8. The individual delegations presented an overview of the particular problems experienced within their countries.
9. Although Burkina Faso is not traditionally a fishing country, its artisanal fisheries are now highly developed. Production is based on the various headwater tributaries of the Volta river and their associated flood-plains as well as on small dams and lakes scattered throughout the country. The drought has caused a serious decline in fish production which has fallen from about 7 000 tons/year under conditions of normal rainfall to about 3 500 tons/year in 1985. Burkina Faso places great emphasis on the development of aquaculture, particularly at the village level. It is also concerned about planning for the protection of the hydrographic basin and the harmonization of fishing regulations between countries sharing the same resource.
10. Gambia's inland fisheries are located on the Gambia river which may be considered in two separate portions - an upper portion which is purely freshwater and undergoes seasonal flooding and a lower portion which is estuarine, brackish and subjected to tidal influence. The system is to be modified in future by a cross river barrage which is to be installed for irrigation purposes. The fishery is poorly developed and Government efforts are concentrated on the improvement of fishing canoes, fishing gear and methods, as well as the provision of basic infrastructure at the canoe fish landing sites, with the aim of increasing fish production for local consumption and export.
11. Senegal has a variety of inland fisheries although the Senegal river and its floodplain is the most important single source. Freshwater fish production within the country has been reduced from about 48 000 tons before the drought to 36 000 tons in 1985. The Senegal river has been particularly hard hit, the production having fallen from 27 000 tons before the drought to 13 000 tons in 1985. Senegal considers the lack of knowledge of its freshwater resources as limiting to its capability to manage the fisheries, and places great emphasis on research, education and redefinition of existing fisheries legislation and regulations. It also foresees the need to develop aquaculture to compensate for losses in fish catch which will result from the changed hydrological regime of the Senegal river, following the closure of the Manantali dam.
12. Although the fisheries of the Central Delta of the Niger dominate Mali's fisheries, other sectors are of importance, including the Senegal river, the Selingue reservoir and possibly the small dams and reservoirs of the Dogon area. Catches of fish have fluctuated considerably over the last 15 years in response to different degrees of flooding, but the general trend has been for a diminution of catch from about 93 000 tons in 1972 to 55 000 tons in 1985. These changes in catch have produced corresponding social changes with many fishermen emigrating or leaving the fishery. The country places emphasis on the role of fishery planning and research for the reconstitution of the fish stock and the stocking of dams as more normal hydrological regimes are reestablished. The delegate of Mali also drew attention to the need to involve the fishermen themselves in the management process.
13. The fisheries of the Niger river have been studied in great detail in recent years through the efforts of the FAO projects NER/79/018 and GCP/NER/027/USA. Fish catch has fallen from about 11 000 tons/year in 1978 to 3 000 tons/year in 1984 and this has affected many fishermen. The reconstitution of the fishery is seen to depend on correct management and the Government is hoping to involve socio-professional fishermen's groups in this process. This means effectively a return to traditional management systems, although the Fisheries and Fish Culture Department will need to assist the fishermen in increasing their competence as managers and providing a framework within which they can operate.
14. The status of the fisheries of Lake Chad was reviewed by an FAO Consultant, Mr V.O. Sagua. The area of Lake Chad has shrunk from about 25 000 km2 in 1962–65 to a minimum of only about 4 000 km2 in 1984. The fish catch which rose from about 65 000 tons/year in 1970 to over 200 000 tons/year in 1974 dropped steadily to its lowest level of 22 000 tons in 1982. Subsequently, some improvement in the hydrological conditions increased the lake level slightly and catches have risen to about 30 000 tons. There are grounds for optimism in the improved pluviosity and it is to be hoped that the lake might return to its normal phase within the next few years. This would pose a range of problems. As only a few studies have been carried out on the lake at present and there is no effective control of the fishery, international agreement on legislation and trade will be needed.
15. On the basis of Mr Moriba Koné's review, the country reports and discussions, the Sub-Committee identified four major fishery sectors of concern in the Sahelian zone, as follows:
It was acknowledged that each of these needed different approaches to management and development.
16. The following were identified as activities important for management of Sahelian fisheries:
Short term
Inventory of water bodies to provide an indication of the magnitude and location of the aquatic resources in each country.
Determination of the potential productivity of the various types of water.
The creation or re-establishment of associations of fishermen.
Examination of current fishery regulations to determine their relevance and validity to existing conditions.
Improvement of the administrative and research infrastructure to better advise and assist the fishery.
Medium to long term
Training of fishery administrators at upper and middle levels.
Creating or improving research capacity on freshwater fisheries and aquaculture.
The development and extension of aquaculture.
The integration of aquaculture into irrigation systems and reclaimed floodplains.
The development of techniques for managing small dams and lakes.
The incorporation of fisheries into river basin planning at national and international levels.
The standardization of management practices within a single basin.
Collection and exchange of information on Sahelian fisheries by formal mechanism, such as a newsletter and scientific journal and through study visits to areas of special competence, possibly through Technical Cooperation among Developing Countries (TCDC).
Management measures
17. Various management strategies were discussed and the following techniques were suggested for application:
limitation of access to the resource;
closed season for the fishery;
creation of permanent protected areas;
control on importation of fishing gear;
development of improved fishing techniques and prohibition of damaging methods.
18. An adequate knowledge of the fisheries is needed to better formulate and apply these management measures. This would require improved knowledge and monitoring of the resource and socio-economic studies of fishermen and fishing communities. Fishermen's associations and other parties interested in the fishery should be consulted in the formulation of these regulations.
Policies, Sectoral Development Plans and Strategies
19. This item of the agenda was dealt with on the basis of document CIFA/PD:S/86/4 presented by the Secretariat, as well as the discussion on the preceding item of the agenda on the Status of Inland Fisheries in the Sahelian Zone. The Sub-Committee agreed that inland fisheries management objectives should aim at maintaining a constant production level, thereby enabling as many fishermen as possible to maximize the socio-economic benefits of fish resources.
20. The Sub-Committee also agreed that achievement of these objectives and the management measures recommended above hinged on the prior definition of national policy and plans for fisheries development. Such a policy should be based on a number of preconditions, such as knowledge of the stocks, fish potential, and the socio-economic conditions of fishermen. A national policy implies essentially a political choice to be made with respect to resource allocation. The policy needs to be formulated in close consultation with the fishermen's communities and all other persons concerned.
21. In certain African countries, a national policy consensus has been reached through national deliberations, in which all governmental, commercial, regional and local fisheries interests have been represented. In other countries, such as Burkina Faso, sectoral development plans have been carried out by the countries themselves, assisted by consultants supplied by donor agencies at the requests of the respective governments.
22. The Sub-Committee noted that various member States lacked specific fisheries policies, and those countries were encouraged to take steps toward the establishment of such policies. Once a national policy has been establishment with the participation of fishing communities, governments should proceed with the next step - the drawing up of a sectoral fisheries management and development plan, which is usually an integral part of the national development plan. The fisheries sectoral plan establishes strategies for national fisheries management and development at three levels: national, regional and international (in the case of common basins).
23. Participation of representatives of the international community during the formulation of the national sectoral plan and related strategies will facilitate early identification of areas of donor interest and rapid implementation of the national strategies.
24. All member States sharing common watersheds and existing organizations for managing these common basins are urged to include fisheries in their regional management and development plans. Member States should therefore communicate their national policies and sectoral plans to these organizations so that greater harmonization of these policies and legislation can be achieved.
25. In order to define clear policies and sectoral plans, member States will often require policy and planning advice. Member States are urged to request professional assistance from international organizations specialized in these fields. In this connection, the Sub-Committee was informed that a regional project, which aims at providing policy and planning advice, is presently being formulated by FAO/UNDP for West Africa. It was stressed, however, that the responsibility for policy and plan formulation rested with member States and that outside assistance should only be complementary.
26. Once regional policies and legislation have been harmonized within a given river basin, member States should then be able to formulate common strategies within their respective regional organization with the assistance of agencies specialized in fisheries management and development.
27. In cases where national policies have been clearly defined and incorporated into a fisheries sectoral plan with precise strategies and projects, financing of these projects, whether national or international, is greatly facilitated. Studies will still be needed, however, to establish project feasibility. If donors are involved, for example in the later stage of the planning process, indication of interest will accelerate the financing process. It was noted that some donor organizations required, as a prerequisite to concessionary assistance, the preparation of detailed sectoral plan.
28. In conclusion, it was recommended that countries with no stated policy, sectoral plan or development strategies should immediately initiate the process to formulate these. FAO was requested to provide assistance to countries requesting it in this field either through high-level policy or planning missions or national planning seminars.
29. In many cases, member States will require longer term technical assistance to help them assess their fishery potential and undertake socio-economic studies. In such cases, assistance might be requested, among others, from the FAO Technical Cooperation Programme (TCP) - as was done in Niger - or from UNDP.
30. This agenda item was introduced by the Secretariat on the basis of document CIFA/PD:S/86/5, supplemented by CIFA/PD:S/86/Inf. 9.
31. The World Conference on Fisheries Management and Development, held in Rome from 27 June to 6 July 1984, endorsed a Strategy for Fisheries Management and Development and requested States and international organizations to take account of the principles and guidelines contained therein when planning the management and development of fisheries. The World Conference also approved an integrated package of five Programmes of Action to assist developing countries to increase fish production and improve their individual and collective self-reliance in fisheries. Additionally, a number of resolutions were adopted.
32. In Resolution No. 3, the Director-General of FAO was requested to take all measures necessary to ensure the implementation of the Programmes of Action and to provide the FAO Committee on Fisheries (COFI) and the other governing bodies of the Organization with periodic reports of the progress achieved in implementing the Strategy and the Programmes of Action. The Resolution further encouraged States, international and regional organizations to collaborate with the Director-General in preparing such reports.
33. COFI at its Sixteenth Session in April 1985 requested FAO to submit a preliminary progress report to its Seventeenth Session in May 1987, in preparation for the presentation of a more exhaustive report to the Twenty-fourth Session of the FAO Conference in November 1987.
34. In order to simplify the reporting procedure, a standard format was designed by FAO and sent to all countries which attended the World Fisheries Conference. The format, together with a supplementary data sheet for be completed by the countries and returned to FAO by the end of August 1986, to enable the Organization to prepare a consolidated and analytical review to be presented for consideration by the Seventeenth Session of COFI.
35. In order to give an indication of the role being played by FAO in implementing the Programmes of Action, a list of FAO inland fisheries and fish culture projects which are of direct interest to the Sahelian zone, was presented to the countries (CIFA/PD:S/86/Inf.9) for information and comments.
36. In the discussion which ensued, the Sub-Committee thanked FAO for the assistance so far provided in implementing the Strategy and Programmes of Action in the Sahelian zone. Delegates also gave accounts of the status of certain fisheries projects in their countries. It was stated that some projects failed to get off the ground mainly due to financial constraints.
37. Concerning recruitment of experts for project implementation, the Sub-Committee stressed the desirability of using existing national and regional expertise in future, for reasons of sensitivity and a better understanding of the working environment.
Enlargement of the Sub-Committee
38. The question of increasing the membership of the Sub-Committee was raised. It is a fact that countries share the same watersheds, and are therefore interested in the work of the Sub-Committee. It was, however, agreed that the initiative of joining the Sub-Committee belonged to the countries themselves, and requests to do so should be channelled to the Director-General of FAO.
African Regional Aquaculture Centre (ARAC)
39. In answer to a question on the sponsorship of trainees at the African Regional Aquaculture Centre (ARAC), it was pointed out that FAO had no specific funds allocated for this. It had been foreseen when ARAC was set up that the member countries themselves would sponsor their trainees at the Centre. Nevertheless, in some cases, FAO/UNDP national fisheries and fish farming projects might be able to sponsor the training of some national project staff members at ARAC.
Conservation of genetic resources
40. The Sub-Committee recommended that a project be formulated to conserve the genetic resources of the region's fish for fish farming purposes. For example, in the case of Tilapia spp., pure strains were being lost through inter-specific breeding and hybridization in the wild to the extent that pure breeds for genetic improvement may soon be unavailable in the region.
Support of the Regional Office for the Sub-Committee
41. The Sub-Committee expressed appreciation for the support provided by FAO and its Regional Office for Africa in the promotion of fisheries development in Africa. However, in the light of the new international commitment to the development and management of fisheries following the World Fisheries Conference, the Sub-Committee expressed the hope that FAO would further strengthen its technical support in future to the Committee for Inland Fisheries of Africa (CIFA) and its Sub-Committee for the Protection and Development of Fisheries in the Sahelian Zone, to ensure that fisheries played the roles recognized and assigned to it by the World Fisheries Conference in the overall socio-economic development of Africa. In this regard, the FAO Regional Office for Africa was requested to continue to extend its active support.
Working Group on the Man-made Lakes of Nigeria, Côte d'Ivoire and Ghana
42. Ghana, an observer country, suggested that an informal working group, comprising Nigeria, Côte d'Ivoire and Ghana, being West African countries having large man-made lakes, should meet unofficially during the next session of CIFA to outline plans of action for research and development of the fisheries of these lakes.
43. The Sub-Committee debated in detail and considered of highest importance regional information interchange. The members specified five areas of action as stated below in paragraphs 44–48.
44. Attention was drawn to the need for a general review of available scientific documentation and current research regarding the Sahel area, in order to avoid wasting resources through undue duplication of research. Since no such review currently existed, the Sub-Committee recommended that an annotated bibliography by watershed be prepared.
45. The Sub-Committee noted that there was no forum for sharing information of interest to Sahelian fisheries between scholars and technicians. Members therefore recommended the creation of a regional newsletter devoted to Sahelian fisheries.
46. It was recognized that a newsletter alone would not satisfy the need for more detailed technical collaboration among fisheries workers in Sahelian countries, especially in activities concerning cooperative research, standardization of data collection and interpretation methods, harmonization of fisheries legislation and introduction of new species. For these, more personal and sustained contacts would be necessary. The Sub-Committee therefore recommended the creation of an informal correspondence working group of fisheries scientists and technicians in order to:
exchange details of scientific and socio-economic work being pursued in different countries;
invite comments on management proposals having international impact, such as the construction of dams or introduction of new species;
establish a basis for a common approach to data collection and interpretation;
form a general framework for collaboration in socio-economic and scientific work in the region.
47. Sharing information through journals and correspondence would not ensure the dialogue and field experience vital for evaluating research and application. The Sub-Committee therefore stressed the need for encouraging study visits of fisheries workers within the region to other member States specializing in selected topics.
48. It was pointed out that there were already regional organizations that collect and analyse information critical to all of the member States. These organizations need to be revitalized. In the Lake Chad region, for example, additional research, such as satellite imagery on the Chari and Lagone rivers, would permit the member States of the Lake Chad Basin Commission to obtain essential information to better plan their national programmes. The Sub-Committee was further informed that the FAO global information and early warning system on food and agriculture and fisheries provided an important immediate source of Sahelian information. Other regional organizations, such as AGRHYMET (Programme for strengthening the agro-meteorological and hydrological services of the Sahelian countries and establishment of a centre for training and applications of agro-meteorological/operational hydrology, WHO) and the Niger Basin Authority also have significant resources to serve the member States. The Sub-Committee recommended that the FAO Secretariat contact these organizations in order to develop mechanisms to share information of regional interest.
49. The Sub-Committee suggested that its next session be held during the Seventh Session of CIFA, scheduled for November 1987 in Dakar, but noted that Mali and Niger had proposed to host the Fourth Session of the Sub-Committee, pending their Governments' official approval, which would be communicated to the Director-General of FAO.
50. The report was adopted on 9 October 1986. A vote of thanks was given by the Chairman and the participants to the Government of Ghana for kindly hosting the Session, and to the Ghanaian Press for the excellent coverage given to the proceedings of the Session.
