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Have subsidies played a role in Have subsidies played a role in IUU fishing for Patagonian IUU fishing for Patagonian toothfish in the Southern toothfish in the Southern
Oceans? Oceans?
UNEP Workshop on Fisheries Subsidies and UNEP Workshop on Fisheries Subsidies and Sustainable Fisheries ManagementSustainable Fisheries Management
26-27 April, 200426-27 April, 2004
GenevaGeneva
Indrani LutchmanIndrani Lutchman
Outline of presentationOutline of presentation
Introduction to the case studyIntroduction to the case study
Description of the fisheryDescription of the fishery
Description of the subsidyDescription of the subsidy
Results of analysisResults of analysis
Conclusions and recommendationsConclusions and recommendations
IntroductionIntroduction
Case study was one of seven funded by WWFCase study was one of seven funded by WWF
Investigating links between government Investigating links between government subsidies and depletion of stockssubsidies and depletion of stocks
This study makes the case:This study makes the case:
• that government acquiescence about IUU fishing can that government acquiescence about IUU fishing can be a form of ‘harmful’ subsidybe a form of ‘harmful’ subsidy
Description of the Fishery Description of the Fishery
Toothfish is a large, long-lived species found in off Toothfish is a large, long-lived species found in off South America and sub-Antarctic IslandsSouth America and sub-Antarctic Islands
Highly lucrative species fetching up to US$10 per Highly lucrative species fetching up to US$10 per kilokilo
Fishery began in mid-1990sFishery began in mid-1990s
By 1998, major stocks were depleted (in Indian By 1998, major stocks were depleted (in Indian Ocean sector)Ocean sector)
Two main types of fishing:Two main types of fishing:
Legal fishing Legal fishing
• fishing with licences in CCAMLR Convention Areafishing with licences in CCAMLR Convention Area
• fishing within waters of national jurisdiction outside fishing within waters of national jurisdiction outside CCAMLR Convention AreaCCAMLR Convention Area
• fishing on high seas outside CCAfishing on high seas outside CCA
Description of fishery (continued)Description of fishery (continued)
Description of the Fishery (continued)Description of the Fishery (continued)
Illegal fishing Illegal fishing Illegal – fishing by vessels flagged by parties to CCAMLR but whose
activities are in contravention of its conservation measures, for example, fishing out of season; fishing in waters subject to coastal state jurisdiction (even with the CCAMLR Convention Area) without the state’s permission, by either CCAMLR or non-CCAMLR flagged vessels.
Unregulated – when fishing occurs on the high seas (i.e. outside areas of national jurisdiction) but within the Convention Area by vessels whose flag state is not a CCAMLR party and whose activity is therefore assumed to be contravening or undermining conservation and management in the area.
Unreported – firstly covers the catches of illegal and unregulated fishing which are most unlikely to be reported but also may cover examples of mis-reporting (for example, declaring catch came from a different area) or under-reporting, where that mis-reporting is wilful. (Source: Agnew and Green, 2002)
(Source: Green and Agnew, 2000)
Map of Map of the the
CCAMLR CCAMLR ConventiConvention Areaon Area
Description of the fishery (continued)Description of the fishery (continued)
History of IUUHistory of IUU
• In 1992/1993 with Chilean and Argentine registered In 1992/1993 with Chilean and Argentine registered vesselsvessels
• By 1995, illegal Chilean vessels fishing in South GeorgiaBy 1995, illegal Chilean vessels fishing in South Georgia
• UK Government implement MCS and enforcementUK Government implement MCS and enforcement
• IUU vessels move to Indian Ocean Sector 1996-1997IUU vessels move to Indian Ocean Sector 1996-1997
• Next move to Australian zone 1997-1998Next move to Australian zone 1997-1998
Movement of IUU fishersMovement of IUU fishers
Area 48.3 (S. Georgia) Area 58.4.4 (Ob/Lena Banks)
Area 48.4 (S. Sandwich Islands) Area 58.5.1 (Kerguelen Islands)
Area 58.5.2 (McDonald / Heard Islands)
Area 88.1 (Balleny Islands) Area 58.6 (Crozet Islands)
Area 58.7 (Prince Edward / Marion Islands)
0
5,000
10,000
15,000
20,000
25,000
'89/90
'90/91
'91/92
'92/93
'93/94
'94/9
5
'95/9
6
'96/9
7
'97/9
8
'98/9
9
'99/0
0
02,0004,0006,0008,000
10,00012,00014,00016,000
'89/90
'90/91
'91/92
'92/93
'93/94
'94/9
5
'95/9
6
'96/9
7
'97/9
8
'98/9
9
'99/0
0
Area 48.3 (S. Georgia) Area 58.4.4 (Ob/Lena Banks)
Area 48.4 (S. Sandwich Islands) Area 58.5.1 (Kerguelen Islands)
Area 58.5.2 (McDonald / Heard Islands)
Area 88.1 (Balleny Islands) Area 58.6 (Crozet Islands)
Area 58.7 (Prince Edward / Marion Islands)
02,0004,0006,0008,000
10,00012,00014,00016,00018,000
'89/90
'90/91
'91/92
'92/93
'93/94
'94/9
5
'95/9
6
'96/9
7
'97/9
8
'98/9
9
'99/0
0
0
2,000
4,000
6,000
8,000
10,000
12,000
'89/90
'90/91
'91/92
'92/93
'93/94
'94/9
5
'95/9
6
'96/9
7
'97/9
8
'98/9
9
'99/0
0
0
5,000
10,000
15,000
20,000
25,000
Description of the Fishery (continued) Description of the Fishery (continued)
Impact on toothfish stocks:Impact on toothfish stocks:
In PE and Marion IslandIn PE and Marion Island
In French Islands (Crozet and Kerguelen)In French Islands (Crozet and Kerguelen)
In 1998, CCAMLR strengthens and implements In 1998, CCAMLR strengthens and implements new measures to curb IUU fishingnew measures to curb IUU fishing
Description of the subsidyDescription of the subsidy
Specifically:Specifically:
• subsidies for vessels construction for fishing in South subsidies for vessels construction for fishing in South AtlanticAtlantic
• access subsidies for foreign fishing rights access subsidies for foreign fishing rights (EU/Argentine)(EU/Argentine)
• government acquiescence - a form of ‘harmful’ subsidygovernment acquiescence - a form of ‘harmful’ subsidy
Description of the fishing subsidy Description of the fishing subsidy (continued)(continued)
Subsidies for vessel constructionSubsidies for vessel construction
• Norway funded construction of longline vessels for South Norway funded construction of longline vessels for South Africa with subsidies of NOK5-6 million (Album, 1997)Africa with subsidies of NOK5-6 million (Album, 1997)
• Glacial vessels fished legally in 1996 for hakeGlacial vessels fished legally in 1996 for hake
• Same vessels arrested for IUU fishing toothfish in 1997 in Same vessels arrested for IUU fishing toothfish in 1997 in SA, Australian and French territories in CCAMLR SA, Australian and French territories in CCAMLR Convention AreaConvention Area
• Other vessels also involvedOther vessels also involved
Description of the fishing subsidy Description of the fishing subsidy (continued)(continued)
Access subsidies Access subsidies • migration of EU vessels (mainly Spanish) to the Southern migration of EU vessels (mainly Spanish) to the Southern
Ocean mainly through EU/Argentine Agreement for hakeOcean mainly through EU/Argentine Agreement for hake
• In 1992, EU/Argentine agreement signed and came into effect In 1992, EU/Argentine agreement signed and came into effect in 1994 for five yearsin 1994 for five years
• 28 Spanish vessels transferred to the hake fishery >40m Euros28 Spanish vessels transferred to the hake fishery >40m Euros
• However by 1995-1998, catches were 47-58% above TACsHowever by 1995-1998, catches were 47-58% above TACs
• Hake stocks declined , vessels forced to other fishing groundsHake stocks declined , vessels forced to other fishing grounds
Description of the fishing subsidy Description of the fishing subsidy (continued)(continued)
• Two vessels originally funded by EU for the Two vessels originally funded by EU for the EU/Argentine fisheries agreement for hake enter IUU EU/Argentine fisheries agreement for hake enter IUU fishing for toothfishfishing for toothfish
• The Orense and the Ibsa IVThe Orense and the Ibsa IV
• Ibsa IV was fined for illegal fishing in French waters in October 1998
• Orense was involved in transhipping IUU fish from longliners and was sunk at sea in 1998
Description of the fishing subsidy Description of the fishing subsidy (continued)(continued)
Acquiescent flag states (CPs and non-CPs)Acquiescent flag states (CPs and non-CPs)• non-compliance with conservation measuresnon-compliance with conservation measures
Acquiescent coastal statesAcquiescent coastal states• South Africa, eg. For not imposing sanctionsSouth Africa, eg. For not imposing sanctions
Aquiescent port states Aquiescent port states • Mauritius, SeychellesMauritius, Seychelles• allowing IUU fishers to land in their portallowing IUU fishers to land in their port
ConclusionConclusion
• IUU fishers flagged to CPs and non CPsIUU fishers flagged to CPs and non CPs
• IUU fishing contributed to decline of localised toothfish IUU fishing contributed to decline of localised toothfish stocksstocks
• No evidence has been found that the development of IUU fishing was directly and deliberately linked to any particularly government or subsidy
• However, the export of excess fishing capacity identified as having indirectly contributed to the expansion of IUU fishing and the decline of toothfish stocks
ConstraintsConstraints
Case study was constrained by gaps in information on
:• the historical status of some toothfish stocks
• obvious uncertainty of estimates of IUU catches
• the confidentiality of some CCAMLR and industry information on vessels
• economic data on subsidies
Future analysisFuture analysis
To do a full analysis would require:
• Up-to-date and historical information on stock status • More accurate estimates of IUU fishing, catches, trade and
trade routes• Publicly accessible information on the vessels authorised by
each country to fish in the CCAMLR Convention Area• A detailed, verified vessel database clearly showing the history
of naming, flagging and ownership of each vessel• Economic information on national subsidies • Clear, verified information on the origin of fish transhipped or
landed in different ports
