Fisheries management policies
Doc. 7514
12 April 1996REPORT[1]
Rapporteurs: Mr ARATA, Italy, Group of the European Peoples' Party, and Mr HOLTE,Norway, Liberal, Democratic and Reformers' Group
Summary
The growing difficulties of fisheries management have contributed to make it an issue of international concern. There is still a mismatch between fishing capacities and the assumed sustainable level of important stocks. Biological science has not been able to consistently predict future catchable volumes, hence quotas have often been set above those recommended by biological science. The over-capacity in fleets prevails with few alternatives to employment particularly in coastal rural areas highly dependent on fisheries. Furthermore, fishermen in many regions have shown a marked reluctance to adhere to regulations established by the state(s). These issues are closely linked to the management of marine resources; other policy instruments in fisheries therefore take effect against the background of the management system in place.
The challenge for Europe consists in improving management regimes of ecosystems in its own waters as well as wherever European fishermen are harvesting. The strategy must be to achieve a rational and sustainable use of the living marine resources and to involve all parties concerned in the implementation and monitoring of this policy.
A European marine agency, as recommended in Assembly Resolution 1012 (1993), should be created for the co-ordination of research into marine ecosystems, the formulation and monitoring of conservation and exploitation policies as well as for the information of the public and policy-makers on the vital issues relating to sustainable utilisation of living marine resources and of prudent long-term fisheries management policies.
I. Draft resolution
1. The Assembly recalls its Resolution 972 (1991) on the future of ocean fisheries and its Resolution 1012 (1993) on marine mammals.
2. It is concerned that living marine resources, in particular fish stocks, are still over-exploited, that there still exists an over-capacity in fleets, and that there is still little alternative employment for European fishermen, in the fishing industry and coastal communities dependent on fishing for their survival and well-being.
3. The Assembly is of the opinion that prudent management policies for the sustainable use of living marine resources, including marine mammals, should be based on detailed knowledge and understanding of the marine ecosystem concerned and the interrelationship between the different species, as well as on a sound understanding of the interdependence between technical, biological and economical factors.
4. It has taken note of the important work undertaken by the governments of Council of Europe member states, the European Union, OECD and the United Nations in this field, but considers that a greater effort is needed.
5. Against this background, the Assembly calls on the governments, and in particular those of Council of Europe member states, the European Union, OECD and other intergovernmental organisations concerned:
i. to increase their efforts for the introduction and improvement of multi-species fisheries management policies based on sustainable exploitation and maintenance of living marine resources in general, giving priority to areas of major importance for Europe, European fishermen and related industries;
ii. to actively participate in developing and/or improving global and regional legal regimes (management policies) for the protection and sustained management of living marine resources, and to make sure that they are monitored in close co-operation with the countries concerned;
iii. to include in this work the re-establishment of a balance between fishing efforts and fishing yields, the securing of proper enforcement of agreed conservation measures (for example, quotas) appropriate to the waters concerned, to bring all catches under regulation and control, including in international waters, and offset all catches against the determined quotas for each stock � including legislation on discards;
iv. to continue improving the instruments for the resolution of conflicts, particularly for the different marine areas of vital importance to European fisheries;
v. to fully involve fishermen and other groups directly affected by fisheries management policies in the process of their development and implementation, as well as encouraging all parties to choose dialogue and co-operation and actively participate in providing viable solutions to the problems of responsible management;
vi. to fight against marine pollution and littering, and promote rapid cleaning and reduction of damage following pollution spills as well as complete removal of discarded oil and gas installations through international co-operation;
vii. to renew their fleets in a responsible manner, maintaining a varied and differentiated fishing fleet where coastal fisheries remain the core, with their capacity well respecting a sustainable utilisation of the living marine resources;
viii. to seriously consider the creation of a European programme to foster research and development for the sustainable use of living marine resources in our waters and to co-ordinate scientific data collection and dissemination.
II. Draft order
on sustainable exploitation of living marine resources
1. The Assembly refers to its many recommendations and resolutions on the marine environment and, more specifically, to its Resolution 972 (1991) on the future of ocean fisheries and its Resolution 1012 (1993) on marine mammals.
2. The Assembly recognises the complex nature of the study, exploitation and multiple uses of the marine ecosystem.
3. It is aware that Europe has an important and diversified scientific and technological knowledge-base covering most aspects of fisheries and other uses of marine ecosystems.
4. The Assembly is concerned that this considerable knowledge and know-how should be optimally used for the benefit of mankind and life on earth by assuring the conservation and sustainable use of the marine ecosystem.
5. It welcomes in this connection the setting up, within the European Science Foundation, of a European Board for Marine Science.
6. Consequently, the Assembly decides to study the multiple institutional arrangements and activities centred on the management of the exploitation of living marine resources, including their links to other multiple uses of the marine ecosystem.
7. It therefore instructs its Committee on Agriculture and Rural Development, in close co-operation with the Committee on Science and Technology and the Committee on the Environment, Regional Planning and Local Authorities, to carry out such a study. The latter should propose ways and means of improving the co-ordination and use of European knowledge and know-how for the management of the multiple uses of marine ecosystems, in particular fisheries, aquaculture and related activities, and for the improvement of information to political decision-makers and the public on ocean ecosystems and their multiple uses, as well as for ensuring proper enforcement of agreed conservation measures.
III. Explanatory memorandum
by Mr ARATA and Mr HOLTE
Contents
2. Fisheries management policies � of vital importance
4. Sustainable harvesting � prudent management
7. Joint efforts � international co-operation
8. Education, research, knowledge and dissemination of information
The growing difficulties of fisheries management have contributed to make it an issue of international concern. The introduction of exclusive economic zones extending up to 200 nautical miles and the adoption of the United Nations Convention on the Law of the Sea, have now placed more than 90% of world fishing resources under the jurisdiction of coastal states. Correspondingly, fisheries are largely subject to national management regimes. Although the nationality of the eventual owner of the fish is known � once caught � in many countries the basic problem of fisheries management still remains. Experience has shown that attempts at solving the problem have not worked as well as hoped for: there is still a mismatch between fishing capacities and the assumed sustainable level of important stocks. On the one hand, biological science has not been able to consistently predict future catchable volumes, hence quotas have often been set above those recommended by biological science. On the other hand, the over-capacity in fleets prevails with few alternatives to employment particularly in coastal rural areas highly dependent on fisheries. Furthermore, fishermen in many regions have shown a marked reluctance to adhere to regulations established by the state(s).
The Assembly in its Resolution 972 (1991) on the future of ocean fisheries invited the governments of member states, the European Community, OECD and other intergovernmental organisations concerned: "to work as a matter of grave urgency for the introduction of sustainable multiple species management policies for the exploitation and use of marine ecosystems and their living resources in general".
Furthermore, the Assembly in its Resolution 1012 (1993) called on "the governments of Council of Europe member states and the European Community to set up a European Marine Agency (EMA) for the carrying out and co-ordination of research into marine ecosystems, the formulation of conservation and exploitation policies as well as the dissemination of information and knowledge".
In the light of this, a two-day Seminar on Fisheries Management Policies was organised as part of the Sub-Committee on Fisheries' continuing effort to address the vital issues at hand; the findings of the seminar form the basis of this report and draft resolution. The seminar was hosted by the Norwegian delegation to the Parliamentary Assembly and took place on 30 and 31 May 1995 in �lesund, Norway.
The present report aims at further clarifying vital elements regarding the management of fisheries and the living marine ecosystem in general and the required political action. A summary report and compendium of documents from the seminar has been published separately.
2. Fisheries management policies � of vital importance
The sea and its resources have always been of importance to the European coastal countries and their neighbours. The abundant marine ecosystem has made it possible for many of the communities to sustain themselves over the centuries. The current challenges of fisheries management and our problems with them, therefore, are derived from our need for, and dependence on, marine food supplies. It is also important to keep in mind that fishing is special in another particular sense. The fishing grounds are of interest and importance to all of us, and some of them we share in a very direct manner. Where a fisherman from one country is today, another fisherman from a different country might be tomorrow, and then one from a third country the day after that. No other sector shares a workplace and food source in a similar way. A need for sound international management should be obvious.
Fisheries management face many different conditions, however, (1) resource sustainability must be a central issue; (2) those having or having been given the privilege of exploitation must also have responsibility for the management and maintenance of the stock; (3) long-term access to marine resources may be combined with an obligation to sharing, for example, in times of need investments outside the fisheries sector may be drawn upon to cover shortfall in incomes.
We, your rapporteurs, hold that rational and responsible management is of common interest and crucial to rebuilding and maintaining living marine resources and allowing for its optimal long-term use. Generally speaking, we hold that a government intervenes to regulate fisheries in the belief that it will increase the ability to meet social, economic and biological objectives with respect to the use and maintenance of living marine resources. Three of the main issues in fisheries today are still (1) over-exploited stocks, (2) over-capacity in fleets, and (3) few alternatives to employment. These issues are closely linked to the management of marine resources, therefore one might argue that other policy instruments in fisheries take effect against the background of the management system in place.
The outcomes of the application of fishery policy instruments, however, do not solely depend on the instruments used, but also on the characteristics of the fishery system and exogenous factors outside the control of the government. It is therefore difficult to evaluate the effectiveness of individual instruments.
Against this background, two years ago the OECD Committee for Fisheries initiated a study on the economic aspects of the management of living marine resources, to determine the impact of alternative management instruments. The study will identify the management instruments being used and the outcome of management regimes for around 100 different fisheries. It should then be possible to draw new conclusions concerning the likely efforts of alternative management instruments, and to identify management instruments which are appropriate to different sets of circumstances. The results of the study, anticipated to be approved by October 1996, should therefore be a valuable instrument for policy-makers and administrators responsible for deciding on fishery policies and for implementing such policies.
Your rapporteurs' view for the current recommendation is based on the following elements: the understanding of a multi-species approach; the need for sustainable harvesting and prudent management involving regulations, control and enforcement; the acceptance of joint efforts and international co-operation; as well as the need for relevant education, further research and dissemination of information.
The multitude of living organisms that can be harvested from the oceans and their interdependence within the ecosystems and interactions with other living organisms impose a global harvesting strategy. The interrelationship between the different species is now widely recognised. The utilisation of the different species must therefore reflect this recent understanding, as well as the interdependence between technical, biological and economic factors when management measures are taken. Furthermore, rational management policies should be pursued for all resources, including marine mammals.
4. Sustainable harvesting � prudent management
We, your rapporteurs, believe that it is both possible and necessary to pursue a policy of sustainable management and conservation of the living marine resources. A primary objective will then be for the privileged parties to maintain and rebuild stocks to levels that can give predictable and sustainable yields.
Prudent management also requires management systems that are accepted and adhered to. Strict regulation on fishing have been passed, not without tough discussions about their form and duration, as well as with negative economic effects for the individual participants as well as communities. Future management systems must therefore be developed through active participation by fishermen's organisations and other groups directly involved, in such a manner that they are understood and accepted. All parties should be encouraged to choose dialogue and co-operation rather than conflict, and encouraged to actively participate in providing viable solutions to the problems of responsible management rather than await the politicians to do so. Politicians may then be the catalysts rather than the original makers of rules.
Rational long-term management measures depend on available data that as far as possible reflect the real situation in the sea, and furthermore depend on previously agreed systems for monitoring and regulation of key stocks. Unregistered catches also constitute a major problem in this respect. Moreover, a sound conservation philosophy stipulates that regulations and corresponding enforcement should be directed towards fishing activities themselves as the starting point. This involves restrictions on entry (licences), limitations in relation to gear (for example, grid sorting systems) as well as quantitative restrictions (quotas, minimum sizes, etc.) and prohibition of discards.
To cope with over-capacity some countries have now started adopting "effort management"; that is controlling input rather than output. This means to control fishing capacity or "fishing effort" not as the tonnage of a boat, but as its capacity in fishing terms. Such an approach may lead to increase in effort during the time one is allowed to fish, but that can be overcome if one concentrates on stocks under pressure. Two experiments on fisheries controlled by effort management are currently being conducted in Denmark, and would be well worth following up in a later report.
The development of the Norwegian fisheries management could well serve as an acceptable example for the control and enforcement system of responsible management, as well as the development in other countries and the European Union.
An essential part of the Norwegian control and enforcement scheme is the commonly agreed need to physically survey all transactions in relation to fishing. This means controlling fishing activities and enforcing the regulations at every level where fishing operations take place � at sea, landing or marketing � within Norwegian jurisdiction. Legal sanctions aim at making violation of fisheries regulations uneconomical.
7. Joint efforts � international co-operation
The fish stocks of the world's oceans do not observe national borders. They migrate within the ecosystem to which they belong and are exploited by fishermen of different states. A practical commitment to responsible attitudes and corresponding fishing will be crucial to avoid conflict in international fisheries relations.
Member states of the Council of Europe share the principle of sustainable management and exploitation with the European Union and other nations, and various recent joint efforts have proved to be fruitful. Furthermore, technological advances, together with a new interest in resources of the high seas from more countries, have led to various action to ensure the survival of fishing activities. However, the principle of sustainable management is differently applied in certain important cases, for example whether all fishing on a particular stock is regulated, and if so whether all catches should be accounted for and deducted from the quotas in order to control the outtake.
It is now also internationally accepted that co-operation is the key to effective inter-state relations. Two aspects are held to be particularly essential to securing genuine international co-operation: (1) the principle of openness, that is the open nature of regional fishing organisations and regulatory bodies, and (2) the principle of effectiveness, that is that organisation and implementation of controls, for example on the high seas, must be effective. In sum, what is needed is a way of guaranteeing the transparency and legal certainty of standards to be applied in a field which remains that of international law, while maintaining the flexibility necessary to enable control standards to accommodate the specific features of each major fishing zone. In this respect, flags of convenience pose one of the most difficult problems to be solved at international level.
Support should be given to the current development of a code of conduct for responsible fishing under FAO auspices, as well as to the United Nations work on straddling fish stocks and highly migratory fish stocks.
Correspondingly, good management principles should be applied everywhere, and all states should work towards implementing the principles which they have recognised as valid. Given the historic importance fishing has had in many member states, this is, however, likely to involve major sacrifices. Therefore, long-term solutions will have to be based on sound knowledge about what the problems and challenges are and on a valid assessment of what will be the practical results of a given set of policies. Many European and international scientific bodies could assist in this work.
8. Education, research, knowledge and dissemination of information
Fisheries management policies can only be successful in the long term on the basis of good knowledge of the living marine ecosystems, on sound harvesting principles coupled with relevant technology, on the ability to meet the high standards set for food quality and assurance in all parts of the production chain, and on mutual agreement on, and understanding of, the principles on which a given set of policies are based.
This involves a dedicated and comprehensive long-term educational agenda; among other things by improving the status, educational level and formal competence of the fishing profession and related industries.
In addition, far more data on fish and other living resources, their interrelationships, stock-sizes and factors influencing reproduction and health, are needed. It is therefore your rapporteurs' opinion that in order to fulfil common obligations and to devise meaningful fisheries management policies, much more research is needed on the complex nature of living marine ecosystems and on the multiple factors influencing them, as well as on harvesting technologies. We again ask the Assembly to seriously consider the creation of a European programme to foster research and development for the sustainable use of living marine resources in our waters.
There is also still a need to better inform the public of these ecosystems and their importance, of the vital issues relating to sustainable utilisation, as well as of other issues related to fisheries management policies. A co-ordinated European action through the creation of a small co-ordinating European marine agency was recommended by the Assembly as a step in the right direction, see Resolution 1012 (1993). It is your rapporteurs' opinion that it now is high time that such a European marine agency be created for this purpose.
Three of the main issues in fisheries today still are (1) over-exploited stocks, (2) over-capacity in fleets, and (3) few alternatives to employment. These issues are closely linked to the management of marine resources, other policy instruments in fisheries therefore take effect against the background of the management system in place.
The interrelationship between the different species are now widely recognised. The utilisation of the different species must therefore reflect this recent understanding, as well as the interdependence between technical, biological and economic factors when management measures are taken. Rational management policies should be pursued for all resources, including marine mammals.
The challenge for Europe consists of taking an initiative to improve management regimes of ecosystems in its own waters as well as wherever European fishermen are harvesting. The strategy must be to achieve a rational and sustainable use of the living marine resources and to involve all parties concerned for the implementation and monitoring of this policy. All parties should be encouraged to choose dialogue and co-operation rather than conflict, and encouraged to actively participate in providing viable solutions to the problems of responsible management rather than waiting for politicians to do so.
Correspondingly, good management principles should be applied everywhere, and all states should work towards implementing the principles which they have recognised as valid. Given the historic importance fishing has had in many member states, this is, however, likely to involve major sacrifices. Therefore, long-term solutions will have to be based on sound knowledge about what the problems and challenges are and on a valid assessment of what will be the practical results of a given set of policies.
The Assembly is again asked to seriously consider the creation of a European programme to foster research and development for the sustainable use of living marine resources in our waters.
It is also high time that a European marine agency, as recommended by the Assembly in Resolution 1012 (1993), be created to inform the public of the vital issues relating to sustainable utilisation of living marine resources and of prudent long-term fisheries management policies.
Reporting committee: Committee on Agriculture and Rural Development.
Budgetary implications for the Assembly: none.
Reference to committee: Doc. 7184 and Reference No. 1981 of 10 November 1994.
Draft resolution and draft order adopted unanimously by the committee on 26 February 1996.
Members of the committee: MM. Scheer (Chairman), Seiler (Vice-Chairman), Adamiak, Bernardini, Bianchi (Alternate: Arata), Mrs Burbien�, MM. Caballero, Cerny, Connolly (Alternate: Pattison), Couveinhes, Dovgan, Feric (Alternate: Suhov), Fronzuti, Ghesqui�re, Ghimpu, Haraldsson, Hoejland, Holte, Hornung, Sir Ralph Howell, Mr Jeambrun, Mrs Johansson, MM. K_a_ko, Korkeaoja, Kotsonis, Lacour, Lanner, Van der Linden (Alternate: Woltjer), Lord Mackie of Benshie, Mrs Melandri, MM. Metelko, Michels, Mrs Moser, MM. Rippinger (Alternate: Kollwelter), Szak�l, Telgmaa, J. Thompson (Alternate: Alexander), Tribunovski, Valdmanis.
N.B. The names of those members present at the meeting are printed in italics.
Secretary to the committee: Mr Lervik.
[1]. By the Committee on Agriculture and Rural Development.