1. The CIFA Sub-Committee for the Protection and Development of the Fisheries in the Sahelian Zone held its Fifth Session from 6 to 10 December, 1993 at the Novotel, Banjul, The Gambia. The Session was attended by representatives from all eight member Countries of the Sub-Committee and an observer from African Development Bank. The list of delegates and observer is given in Annex C.
2. In his opening remarks, Mr C. Joof, Principal Assistant Secretary, Ministry of Natural Resources, welcomed all delegations and observer present and made particular reference to Nigeria, which had recently joined the Sub-Committee. He also welcomed the FAO staff from Headquarters and the FAO Regional Office for Africa.
3. Mr B. F. Dada, Director, Fishery Policy and Planning Division of the Fisheries Department, addressed the Session on behalf of the Director-General of FAO and expressed the appreciation of FAO and all delegates to the Government of the Republic of The Gambia for the kind invitation to hold the Session in Banjul.
4. He informed the Sub-Committee of the concern of the just concluded Twenty-seventh Session of the FAO Conference about the deterioration of food security situation in Sub-Saharan Africa and underlined the role of fish as an important source of food in Africa, representing over half of the region's animal protein consumption. He noted that the fishery resources could contribute much more to the food supply and general economic well-being of the continent than they did at present. For the Sahelian countries, inland fisheries, with estimated catches of 130,000 tons per year since 1988, made a major contribution to the development of the Sub-region in terms of revenue, employment and nutritional self-reliance.
5. Mr Dada drew attention to a number of factors affecting the fisheries in the Sahelian zone including hydro-climatic variations, the construction of hydro-electric dams and the creation of artificial reservoirs as well as their socio-economic effects on the fishermen. He stressed the need for active support of all member Governments, economic groupings and donors, to enable the Sub-Committee achieve its objectives with regard to the development of programmes in the fields of training, research, development planning and management of fisheries.
6. The Session was officially opened, on behalf of the Minister of Natural Resources, by Mr Sulayman Samba, Acting Permanent Secretary. He congratulated Dr Jacques Diouf on his election to the high office of Director-General of the Food and Agriculture Organization of the United Nations. He assured the Organization of the continued support of the Government of The Gambia.
7. Mr Samba stressed the importance which The Gambia attached to its membership of CIFA and its Sub-Committee for the Protection and Development of the Fisheries in the Sahelian Zone. The potential contribution of fisheries to the development of the economy of The Gambia could not be overemphasized. As a consequence, the Government considers the planned development of its industrial and artisanal fisheries as high priority.
8. Mr Samba stressed the role of the artisanal fisheries in the development of the national economy of The Gambia and mentioned the impressive results in artisanal fisheries development attained through the multilateral and bilateral assistance of FAO, EEC and the Governments of Japan and Italy.
9. The Sub-Committee unanimously elected Mr Ousman Drammeh, Director of Fisheries of The Gambia, as Chairman and Messrs V. O. Sagua of Nigeria and Moriba Koné of Mali as Vice-Chairmen.
10. The Agenda was adopted as given in Annex A. The documents presented to the Session are shown in Annex B.
11. The Secretariat summarized the actions taken so far in follow-up to the recommendations of the Fourth Session held in Conakry, Guinea, 7–10 May 1990 as well as other related activities performed during the intersessional period.
12. The Sub-Committee noted that a baseline study and a Project document for Planning, Management and Development of the Fisheries in the Sahelian Countries had been prepared for discussion under agenda Item 5 (b). No action was taken regarding the preparation of an Annotated Regional Compendium of the Fisheries legislation in the Sahel countries as many countries were reviewing their fisheries regulations.
13. The Sub-Committee also noted with appreciation that FAO strengthened its efforts to assist member countries in formulating sectoral development plans during the intersession. An identification mission was fielded to Guinea in 1991 to assess the status of inland fisheries. The mission formulated a project, under consideration by donors, for elaborating a master plan detailing priorities necessary for the revival of the sector. Mali was assisted in 1993 in formulating a project for planning the development of fisheries and aquaculture and in elaborating management plans for the major fisheries. The project would start in January 1994 with UNDP funding. In mid 1993, with the support of the FAO Technical Cooperation Programme, Burkina Faso was assisted to undertake a comprehensive review of the fisheries sector and to accordingly formulate a short to medium-term development strategy and action programme. Similar assistance was provided in late 1993 to Chad. Another major support was provided to the sub-region through the fielding of a mission in March/April 1993 to analyze the impact of climatic changes on the fisheries of the Sahel; the synthesis was presented as Document CIFA/PD:S/93/7, to be discussed under Agenda Item 5 (b).
14. The Sub-Committee was informed that several member countries had initiated action to revise their fisheries legislations. With the assistance of FAO, detailed reviews of fisheries legislations were undertaken in The Gambia in 1991 and in Burkina Faso in 1993. Mali was in the process of reformulating its fisheries legal instruments and would be seeking assistance in drawing up regulations. In addition, Senegal had recently elaborated a master plan for forestry with an inland fisheries and fish farming component. Furthermore, both Mali and Senegal solicited the assistance of FAO for the revision of their inland fisheries legislation.
15. Dr Sagua, FAO Consultant, presented his report “The effects of climate change on the fisheries of the Sahel”. This document (CIFA/PD:S/93/7) inter alia traces the history of rainfall over the major hydrographic basins of the area. There had been a series of droughts since the beginning of the century of which the current drought (1970-present) was by far the most severe and prolonged.
16. Correlations were established between pluviosity, hydrology and fish catch in all the basins. The three-year moving average of catch in the Central Delta of the Niger correlated particularly well with a similar average of discharge. Correlations in the Chad basin were complicated by differences in response by the lacustrine and riverine components of the fishery. The models proposed are based on incomplete fishery data sets and further data need to be collected in order to construct more predictive and accurate analyses in the future.
17. Some assessment of the impact of reservoirs on river fish yields as well as the impacts of climate change on reservoirs was presented. However, the data available are far from complete and further studies are needed to assess the contribution of these man-made structures to the system as a whole.
18. The Secretariat pointed out that the nature of the relationship between flood and catch indicated that Sahelian river fish assemblages are extremely resilient to climatic variation even under intensive fishing pressure. Recovery of the assemblages following years of improved rainfall implies that the systems are not at present overfished. There remains a real risk that such overexploitation will occur should the combination of adverse climatic conditions and heavy exploitation persist in the absence of appropriate management.
19. The relationships also clearly indicate the importance of riverine wetlands in sustaining fishery productivity. All efforts should be made to conserve existing wetlands and rehabilitate those already subjected to modification.
20. In the ensuing discussions, the Sub-Committee pointed out that further studies were required to clarify the role of the headwaters of the major rivers in riverine productivity as well as to define the environmental variables pertaining there. It was also felt that the impact of dams such as Selingue and Markala was more serious than that indicated in the study. There was therefore, a need for the inclusion of fisheries interests in impact assessments before dam construction. These should also focus on evaluation of effects upstream of the dam.
21. Attention was drawn to the problem of water hyacinth in the River Niger in Niger and the probable transference of the problem downstream to Kainji dam and the Nigerian reaches of the Niger river. Control of this weed requires collaboration between the two countries concerned. The problem of saline intrusions into coastal systems and the impacts of diminished river discharges on marine productivity were also emphasised. These also merit further study.
22. The Sub-Committee welcomed the preparation of this report which it considered to be of high scientific quality and would serve as the basis for further studies identified during the discussion. It recommended that:
Any further projects for the construction of dams on Sahelian rivers be preceded by careful assessment of the impacts on fisheries upstream and downstream of the proposed dams.
The collection, interpretation and analysis of statistical data on hydrology and fisheries of Sahelian rivers be intensified in order to improve and refine existing models for use as management tools.
The report, “The effects of climate change on the fisheries of the Sahel”, suitably modified to include more recent studies on Lake Chad, be published as a Technical Paper of CIFA.
23. The Secretariat presented the draft regional project “Inland Fisheries Management and Development Planning in the Sahelian Zone”. The Sub-Committee was informed that the project had been formulated in response to the recommendation of its Fourth Session and had incorporated all the essential elements required to address the main constraints on fisheries management and development planning, common to all the Sahelian countries.
24. It was pointed out that fisheries administrations in the zone lacked the means (human, financial and equipment) to fulfil their objectives, while the inadequacy of high-level trained manpower was one of the major constraints to the conduct of research and provision of management advice and implementation of management measures. The project had been drafted with these in view. Thus the long-term objective of the project is the rational management of water resources which would allow a lasting nutritional contribution from inland fishery products and sustained social and economic benefits within the overall framework of protection of the fragile Sahelian environment.
25. The Sub-Committee noted that the major results of the regional project would include the following:
Establishment, at national levels, of information and statistical data collection and processing systems for selected types of fisheries;
Creation, at sub-regional level, of a network of various data banks for the analysis and dissemination of hydro-biological, socio-economic and other information related to sahelian fisheries;
Formulation of national management plans for selected fisheries and assistance in the revision of legislation and regulations accordingly;
Assistance, on request from countries, in elaborating sectoral development plans and projects;
Strengthening sub-regional cooperation in the preservation of the aquatic ecosystems, in particular with the view of harmonizing policies for the exploitation of shared fisheries resources;
Training of experts from national and sub-regional institutions in the various activities required to achieve the above results.
26. In the ensuing discussion, delegates reiterated their commitment to strengthen harmonization of policies and plans regarding fisheries at subregional level, and unanimously endorsed the draft project proposal.
27. It was however suggested that some refinements to the proposal were necessary. These concerned particularly increased emphasis on the protection of the environment in the Sahel, food security and rural/urban migration.
28. Furthermore, it was noted that for most countries the project was considered an immediate priority because of the recent adoption of policies oriented towards decentralization and community-based management and the initiation of a process of revising fisheries legislation to these ends. However, it was thought that the budget ceiling proposed for the draft project was inadequate, with regard to equipment. In addition, the time-frame was considered too short to achieve the numerous and complex activities programmed. For some countries the training element should be strengthened. The extension of the geographical coverage of the project to include all the Lake Chad Basin Commission (LCBC) countries as well as other countries in the general area, (e.g. Ghana, Benin, Sierra Leone, etc.) could eventually be considered. finally, Burkina Faso expressed its willingness in principle to host the regional project, nothing for example, the location of a number of regional institutions including CILSS in Ouagadougou.
29. The Sub-Committee recommended that the Secretariat should finalize the project document with the above in view and solicit, in cooperation with member countries, for appropriate donor funding.
30. A one-day mini-seminar was held to discuss the subject of fish trade and its related issues. It had as its objective the identification of actions that could be taken at national, regional and international level, to improve fish trade between Sahelian countries and between the Sahelian and non-Sahelian West African countries.
31. The seminar reviewed document CIFA/PD:S/93/2 presented by the Secretariat, together with country papers CIFA/PD:S/93/CS1–8 which were presented by delegates from the eight member countries of the Sub-Committee. Copies of the technical paper published by the FAO Regional office in June 1993, which presents a baseline study on fish trade in the Sahelian region undertaken by INFOPECHE were also distributed to participants.
32. The seminar discussed various issues which had been highlighted, including fish supply and consumption, trade policy, credit in the postharvest sector, fish handling and processing technology, marketing and market information, quality assurance, formal and informal taxation and levies.
33. The seminar in its review, noted that fish consumption in the Sahelian countries ranged from 0.6 kg/caput/year in Niger to over 25 kg/caput/year in Senegal and that there was a wide variation in supplies within the countries. The average consumption in the Sahelian region was approximately 8 kg/caput/year against a world average of 13 kg/caput/year. Per caput supplies in Niger and Burkina Faso were considered too low in view of the relative popularity of fish in the sub-region as well as the high levels of undernutrition and malnutrition which prevail. Some landlocked countries nevertheless noted recent changes in fish marketing patterns, resulting in wider national distribution, less exports and increased internal consumption at village level.
34. In its discussions of fish trade policy, the seminar recalled the ECOWAS Treaty (1975) which had among its objectives the harmonization of customs tariffs within its member States, with a view to promoting intra-regional trade. It also noted that all countries in the Sahelian zone, with the exception of Chad, belonged to ECOWAS. However the seminar recognized that on the one hand fish is a basic food requirement in the Sahelian zone and that on the other hand its distribution is hampered by high taxes and also by informal levies.
35. The seminar recommended that governments should collaborate in an attempt to reduce and harmonize formal taxes and duties and that additional measures should be taken to eliminate informal levies including the safeguard provisions and payment arrangements in ECOWAS treaty and Fund for Cooperation Compensation and Development for successful intra-regional fish trade.
36. The seminar took note of the predominantly informal nature of the bulk of cured fish trade within the zone, the resulting lack of statistics and the parallel difficulty in providing assistance to the sector. It was therefore felt that Sahelian states should take appropriate steps to ensure registration of economic operators, in the first instance to encourage the formation of professional groups and subsequently to help monitor trade, encourage compliance with regulations and eliminate irregular practices.
37. The seminar put a priority on the development and financing of credit schemes for the post harvest sector to better finance intra-regional trade activities. In this regard, whilst noting the important initiatives to be undertaken in the context of the EEC Regional Programme “Improving the Postharvest Utilization of Artisanal Fish Catches” to define suitable schemes for the sector, it was recommended that the Secretariat contact appropriate institutions to assist in financing such schemes. The seminar also recognized that the development of such schemes would be an additional incentive for economic operators to register with the authorities.
38. The seminar emphasised the need for improvement in the collection and dissemination of market information and analysis, if trade promotion was to become a reality. A greater effort should be made to put importing and exporting traders and processors in direct contact, for example by publishing lists of registered operators in BONGA “Market Flash”. In this regard the seminar recommended that additional support to INFOPECHE should be provided by FAO to permit a more complete coverage of the landlocked countries within the Sahelian Zone.
39. It was stressed that in order to increase trade and improve returns to producers, there was need for improved infrastructure (ice and refrigerated storage), which would facilitate a greater distribution of fresh (iced) fish from inland fishery centres to urban areas and to higher income groups particularly in the landlocked countries. The general poor state of road infrastructure was considered an impediment to all forms of fish trade. The seminar noted with concern that there was little evidence of re-investment of taxes levied on the fisheries sector in infrastructure which would encourage its growth or facilitate trade, either at the national level or between neighbouring countries. The seminar recommended that fisheries administrations bring this concern to the attention of the appropriate authorities.
40. The seminar recognized that the quality of many of the products traded in the region, whether fresh, frozen or cured fish needed improvement. However participants emphasised that many of the problems encountered started with harvesting activities; thus remedial action was required at every stage from review of harvesting practices, through on-board handling to processing, packaging and transport. The seminar appreciated the important contributions that had already been made by the EEC Regional programme in its preliminary phase and the actions proposed for its new five-year phase. These included continued work to promote the use of insulated containers in the artisanal fisheries, exchanges between processing groups to encourage use of the chorkor oven, and a working group on packaging and storage of cured fish products. The seminar acknowledged however that these inputs alone would not be sufficient to solve the region's problems and therefore was in favour of formulating complementary inputs in this regard.
41. It was recognized that, in order to make full use of available fishery resources, it might be necessary to undertake simple product development activities, such as the use of salt to reduce breakage and insect infestation, thus discouraging the use of toxic pesticides. Consumer education would then be necessary to enhance the acceptability of such products.
42. In considering many of the above issues and actions required, the Sub-Committee noted the relevance of the African fish technology network coordinated by FAO (The Regional Cooperative Research Programme on Fish Technology in Africa). It recalled that the 5th Expert Consultation on Fish Technology in Africa had taken place in 1991, and recommended that the 6th Expert Consultation be organized not later than 1995.
43. Discussions on this topic were based on document CIFA:PD/S/93/6 which summarized research needs as identified for the Sahel. The report of the Second Session of the CIFA Working Party on Aquaculture, Harare, Zimbabwe, 13–17 September 1993 (FIPL/R489), which discussed research priorities for aquaculture over the whole of Africa was also made available to the meeting.
44. In addressing the needs for research in the region, delegates based their interventions on the needs of administrators for scientific and other information for the formulation of policy and for the monitoring of the impacts of such policies.
45. The Sub-Committee emphasized the essential role of research in the formulation and monitoring of policies for inland fisheries and aquaculture development and management. Because of this essential role, attention was drawn to the need to reinforce national capacities to undertake research both through the training of researchers and through the building of infrastructure.
46. It was particularly recognized that the formulation of inland fisheries and aquaculture programmes should be oriented to the development and management needs of the countries. In so doing it was recognized that the priorities identified by the Study on International Fisheries Research (SIFR) and by the Second Session of the CIFA Working Party on Aquaculture were valid in general but that the conditions of the Sahel required particular emphasis on certain themes identified in the following paragraphs.
47. Environmental issues
Two main environmental problems were affecting sahelian aquatic ecosystems, both arising from management for purposes other than fisheries:
The impacts on fisheries downstream and upstream of large dams and impact of modification of floodplain ecosystems arising from hydro-agricultural development. Information was still scarce on how to evaluate and mitigate these effects.
48. Aquaculture
The Sub-Committee felt that classical rural aquaculture in ponds might not be appropriate to the needs of the Sahel at its present phase of development but approaches to culture should concentrate on the development of aquaculture in: (a) floodplain water bodies through stocking and improved management; (b) small water bodies created for uses other than fisheries through stocking and fertilization.
In both cases technologies for the formulation of feeds based on local resources and techniques for the supply of adequate numbers of fish fingerlings for stocking were felt to be limiting development.
49. Monitoring
There is a continuing need for the development and maintenance of statistical systems to evaluate the potential of sahelian fisheries and to monitor the effects of management policies. In some cases, such as Lake Chad fishery, there is a need for complete new baseline studies to establish the potential and present performance of the fishery after its disruption by drought.
50. Basic studies
Studies on the biology and ecology of the principal fish species targeted by the fisheries remain a necessity.
Studies are needed on the geographical resource base (areas of floodplain and small terrestrial water bodies, identification of areas suitable for classical aquaculture, etc.) by means of Geographic Information Systems and other appropriate techniques.
51. Social and economic studies
Studies of the social and economic situation of the fisherman are needed at many levels:
Establishment of land and water rights associated with development of various culture systems
The interrelationships between traditional fishing rights and other traditional uses of the land and water
Examination of the effects of technological innovation of the cost-effectiveness of the fishery
Marketing studies on the use and destination of the catch
Techniques for the substitution of local materials for imported ones in the construction of gear, craft, etc. and vice versa.
52. Technology
It was recognized that current technologies for construction of canoes and the preservation of fish were ecologically damaging. New technologies need to be developed for these processes that are more environmentally friendly and sustainable but also cost-effective.
53. Delegates felt that the discussions during the present session only represented a preliminary approach to the definition of research programmes for the Sahel and the formulation of projects to carry out such research. It was therefore recommended that a more detailed study be prepared based on a questionnaire to be circulated to all member countries of the Sub-Committee and other interested countries in the region and to be presented at its next Session.
54. It was recognized that financial resources were lacking whereby research programmes may be pursued by the countries of the region. It was, therefore, suggested that future fisheries development projects in the region include a research component.
55. The observer for the African Development Bank stated that it might now be possible to finance research on fisheries as had already been done in other rural sectors.
56. This topic was considered on the basis of document CIFA: PD/S/93/4 which summarized the characteristics and problems of inland fisheries legislation of Sahelian countries. The document also pointed out the importance of traditional management systems and the need to make the modern law compatible with them. The role of central authorities in fisheries management was examined and also the possibility of devolution of management responsibilities to a local level. Integration, collaboration and harmonization among the different member countries in the region was one of the main subjects of the document.
57. The Sub-Committee noted that it was now general policy in the countries of the region to devolve the responsibility for the management of the fisheries away from central authorities towards the fishing communities themselves. It was therefore recommended that member countries revise their existing legislation to make it more compatible with this policy. FAO was requested to assist in this process.
58. Because of the policy of including traditional management systems in the legal framework the participation of interested communities and fishermen in the preparation of the acts and regulations was felt to be essential. Such a participation by the users of the resource would allow the formulation of regulations based on consensus which would encourage such communities to implement them.
59. The Sub-Committee pointed out that many of the aquatic resources of the Sahel are shared and stressed the importance of regional cooperation. A need was identified to establish agreements among the States riparian to any one system and to aid in this process, it was recommended that the Secretariat prepare general guidelines to serve as a framework for the integration of the different laws. The guidelines should lead to the negotiation and adoption of a general code of principles by all the member countries. Such a code would reflect the main provisions of the laws which should include inter alia regulations for the conservation and preservation of the resources.
60. The Sub-Committee recognized that the control of access remained one of the major problems limiting over-exploitation of fish stocks. As a consequence the current systems of licensing should be revised in order to serve as management tools. The activities of migrant fishermen should be taken into account in the formulations of any such regulations.
61. Delegates also emphasized the importance of recognizing different management regimes depending on the water body when drafting legislation.
62. One such system that is meriting consideration was that of concessions to manage and exploit small water bodies as these recognized the rights to exclusive use of the water body concerned for fisheries purposes. A registry could be established in each country to document the issuing of such concessions, and fishing licenses in general.
63. The Sub-Committee strongly emphasized that for workable partnership with fishermen, managerial functions such as the collection of statistics should be separated from enforcement activities.
64. In introducing this subject and the document CIFA/PD:S/93/8, it was highlighted that the shortage of trained fisheries manpower in many of the Sahelian countries had contributed to the lack of sustainability of fisheries development projects. However, a recent survey of African capacities in fisheries by the FAO Regional Office for Africa (RAFR) had shown that while sufficient numbers of trained fisheries biologists were generally available, there was lack of high-level manpower in some areas such as socio-economics, biostatistics, bioecology, fishery technology and other specialities.
65. It was noted that fisheries education and training had not been well articulated in national development plans and there had been insufficient involvement of nationals in fishery research in many of the Sahelian countries. Furthermore, very few well trained women were involved in fisheries development inspite of the preponderance of women in fish processing, marketing and distributive trade in the sub-region.
66. The Sub-Committee examined the existing training mechanisms under three categories:
67. Of these three, the most important category was the training at high level for which there were no institutions within the Sub-region. In the past such training was undertaken overseas at great cost or on scholarships, and often the graduates needed considerable time to gain relevant practical experience applicable to local fisheries. However, in recent years some training had been provided at medium to high level at the Centre de Formation Piscicole de Bouaké (CFPB), Côte d'Ivoire, the Institut Supérieur des Sciences et Techniques Halieutiques (ISSTH) of the Communauté Economique de l'Afrique de l'Ouest (CEAO) in Nouadhibou, Mauritania, and at the African Regional Aquaculture Centre (ARAC) in Port Harcourt, Nigeria in fish culture. It was noted that the training of technicians and fishermen appeared to pose no serious problem although no permanent institutions existed particularly for training of fishermen in the Sub-region. In many cases, there was the need for technical support for the existing training institutions in the Sub-region for the training of high level manpower. The need for cooperation among existing institutions for the optimum use of the facilities in the Sub-region was also stressed.
68. In the ensuing discussions, the Sub-Committee emphasized:
The need for retraining of fishery staff to make them employable and more useful as the utilization of graduates had become a problem in some countries;
The need for high level fishery manpower training at postgraduate level and in areas of shortage such as socio-economics, bio-statistics and fishery technology. Also emphasized was multidisciplinary training with a high practical content;
Encouragement for the training of more women in fisheries as they play a role which in some cases men cannot undertake.
69. The African Development Bank (ADB) representative in his contribution informed the meeting that the Bank could only fund training and institutional building if they were included as components of larger development projects.
70. In conclusion the Sub-Committee made the following recommendations:
There should be an assessment of the training needs and requirements of each country in terms of numbers and specific areas of training.
Emphasis should be placed on the retraining of fishery personnel to ensure their relevance and usefulness in employment.
Regional collaboration should be encouraged and relevant institutions strengthened to enable them play a role in the training of high and medium level fisheries personnel within the sub-region.
The curriculum for the training of fishermen should include elements to enable them to understand and respect the fishery laws and regulations of the country in order to obtain their cooperation in the enforcement of these laws.
71. Finally, FAO was called upon to assist in the strengthening of existing national and regional training institutions in the zone.
72. The Sub-Committee reiterated the usefulness of organizing a workshop or seminar in conjunction with its regular sessions. It suggested that the following topics might be considered for its next session “Enhancement of the fisheries of small water bodies”, “Community-based fisheries management” and “Manpower development and training”.
73. In order to maintain the momentum generated at this session, the Sub-Committee requested the Secretariat to explore the possibility of putting out a periodic newsletter, news bulletin or circular to keep member countries informed during the intersessional period.
74. The Sub-Committee noted with appreciation the offers made by Burkina Faso, Mali, Niger and Senegal to host its Sixth Session in 1996 subject to official confirmation by their respective Governments which would be communicated to the Director-General of FAO.
75. The report was adopted on 10 December, 1993. A vote of thanks was passed by participants to the Government of The Gambia for hosting the Session.
