Integrating fisheries into coastal area management PDF
Preview Integrating fisheries into coastal area management
INTEGRATING FISHERIES INTO COASTAL AREA MANAGEMENT CoverillustrationbyEmanuelaDAntoni Copyrightedmaterial INTEGRATING FISHERIES INTO COASTAL AREA MANAGEMENT FOODANDAGRICULTUREORGANIZATIONOFTHEUNITEDNATIONS Rome,2008 Thedesignationsemployedandthepresentationofmaterialinthisinformation productdonotimplytheexpressionofanyopinionwhatsoeveronthepart oftheFoodandAgricultureOrganizationoftheUnitedNations(FAO)concerningthe legalordevelopmentstatusofanycountry,territory,cityorareaorofitsauthorities, orconcerningthedelimitationofitsfrontiersorboundaries.Thementionofspecific companiesorproductsofmanufacturers,whetherornotthesehavebeenpatented,does notimplythatthesehavebeenendorsedorrecommendedbyFAOinpreferenceto othersofasimilarnaturethatarenotmentioned. ISBN978-92-5-105968-5 Allrightsreserved.Reproductionanddisseminationofmaterialinthisinformation productforeducationalorothernon-commercialpurposesareauthorizedwithout anypriorwrittenpermissionfromthecopyrightholdersprovidedthesourceisfully acknowledged.Reproductionofmaterialinthisinformationproductforresaleorother commercialpurposesisprohibitedwithoutwrittenpermissionofthecopyrightholders. Applicationsforsuchpermissionshouldbeaddressedto: Chief ElectronicPublishingPolicyandSupportBranch CommunicationDivision FAO VialedelleTermediCaracalla,00153Rome,Italy orbye-mailto: [email protected] ©FAO2008 Copyrightedmaterial 1 Integratingfisheriesintocoastalareamanagement Marine and large lake fisheries depend on the coastal areainmanydifferentways.Afishery’ssuccessisbasedupon continuingstocksoffish,whichrequirehealthyhabitatsfortheir own food supplies and life cycles. Activities that result in changestoacoastalenvironmentcanaffectthelong-termwell beingoffisheries. Likewise,fishingactivitiesmayimpactother coastalinterestsandactivities,suchasagricultureandtourism, whichalsorequirespaceandresources. Coastal developments should be well planned and managedwithcare,toavoidfocusingtoomuchonanysingle activity. Countries should protect their natural resources, keepinginmindtheinterestsofallpeopleliving inthecoastal area. This comprehensive or “holistic” approach is known as integratedcoastalmanagement(ICM). ICMcouldbecomparedtothebuildingofahouse,which is used for a variety of activities - often by a number of residents. Manyconsiderationsareinvolved, including building location,characteristicsoffutureoccupants,materialsavailable, and cost. Before construction begins, an overall planning frameworkisprepared,toidentifyneedsandtoguidethework. TheseguidelinesexplainandexpanduponArticle 10of the 1995 Code of Conduct for Responsible Fisheries, more commonlyknownastheCodeofConduct.Article10considers howfisheriescanbeincludedinplanningandmanagingcoastal areasandresources. Copyrightedmaterial 2 ICMframework Toconserve natural resourcesand include residents in decisions about their use, countries should establish appropriatepolicy,legalandinstitutionalplans. Generalcoastaldevelopments Apolicyframeworkestablishestherangeofgovernment policies that will permit development, conserve the coastal environment,andaccommodatethesocialandeconomicneeds oflocalpeople.Land,water,airqualityandpeople’slivelihoods should be considered and protected. Since development projects and growing populations are threats to natural resources,thechallengeliesindecidinghowscarceresources shouldbeallocated. A major policy problem in managing coastal areas involves“freeand openaccess”to resources. Forexample, if mangroves, coral reefs and the open ocean can be used withoutrestrictions, consequenceslikewaterpollutionandthe destruction offish habitats maythreaten thewell-being ofthe whole area. It is important that “free and open access” to coastal resources be replaced with a policythat controls and regulatesaccesstoandtheuseoftheseresources. Alegalframeworkputscoastalmanagementinstitutions andtheactionsundertakenbythemintolaw.Resourceusecan becontrolledbylawsthatregulate,banorlimitcertainactivities. Withinafishery,controlsmightbeplacedoverfishinggearand practices,aswellasonthearea,seasonandtimeoffishing.If theregulationsarenotfollowed, penaltiesshould beimposed. Copyrightedmater 3 Aproblemwiththis“regulatory”approachisenforcement.Ifitis notpossibletoenforceaparticularregulation, itmaybebetter to not introduce it. Regulations should be flexible enough to deal with a range of possible situations and to help those peopleinvolvedunderstandtheirobligations. Another approach to managing resources is the “economic” approach, which offers financial incentives or requires groups to payfortheiractivities through mechanism suchasuserfees, chargesforreleasing industrialwaste, etc. Even if this policy can be only partly implemented, it often increasestheflexibilityofthemanagementsystem(e.g.itmay beeasiertorevisechargesfordifferentusersthantochange regulationsaffectingthem). Governmentsshouldbeclearaboutwhattheyaretrying to achieve with a legal framework, and examine a range of possiblesolutions.Theyshouldunderstandthatcircumstances canvary,andthe“bestsolution”maychangeovertime. An institutional framework brings together national, regional and local authorities involved incoastal planningand clearlydefinestheirresponsibilities.Itisimportantthatnosingle developmentactivityisgivenanunfairadvantage.Thereshould bearesponsibleagencyforimportantissues,withmeasuresin place to coordinate the activities of all agencies. A truly integrated approach has responsibility for planning and allocatingresourcesunderasingleinstitution.Thisensuresthat authoritiesatalllevelsworktogetherandarekeptinformedof coastalareapoliciesastheyarecreatedandputintopractice. Fisherydevelopments Sometimes the rights of traditional fishers and fish farmersto use coastal resources are overlooked in favourof othergroupssuchasagricultureortourism.Thefishingsector isespecially susceptible to environmental damagefrom other activitiesinthearea.Examplesinclude: Copyrightedmaterial 4 Pollution: e.g. industrial or agricultural waste, pesticidesandfertilizers,sewage,oilspills. Habitat degradation: e.g. mangrove clearance, coal mining,soilrunoffsintoseagrassbedsandreefs. Spatial conflicts: where fisheries are squeezed out fromtraditionalareasbyothercoastaldevelopments. Fishersmustberecognizedasmajorstakeholders,with their representatives included in general coastal management planning. Authorities should have a role in environmental impactstudies, issuingconstruction permits, drafting lawsand regulations,andindecisionsregardingtheuseofcoastalarea space. Internal disputes may arise between fishers from different places using the same area, and between different kindsoffishermen,especiallywithregardtotheuseofdifferent fishinggears.Thisisnormallyreferredtoas“gearinteraction”. Regulations on when and where fishing may be done, or placing limitations on the use of different gears in different areas or at different times, are examples ofways to resolve internal disputes. These regulatory measures should be developedandimplementedinconsultationwiththefishers. If potential conflicts within fisheries and between them andothergroupsusingthemarineenvironmentareanticipated, some conflicts may be avoided. The important thing is that fisheries and coastal area management authorities work cooperativelytoidentifyandresolveconflictsquicklyandfairly. Policymeasures Once a framework for ICM has been established, the principles should be incorporated into national policies for managing coastal areas. This section describes key tasks whichshouldbeundertakenintheprocess. Copyrightedmaterial 5 Informandinvolvethepublic Allgroupsusingcoastalresourcesshouldbeincludedin makingdecisionsaboutthem.Thisiscalleda“participatoryor inclusive”approachtodecision-making.Ifthepublic,especially localresidentsofcoastalcommunities,haveaninformedsayin howtheirareaistobedeveloped,goodplanningdecisionsand compliance with subsequent laws are more likely to result. Ways of involving and keeping the public informed include creating discussion groups, holding publicmeetings, usingthe media and getting non-governmental organizations (NGOs) involved. However, the natureoffishing activities, whereworking hours can be long and irregular and fishing communities isolated maymake itdifficultto reach fishers, thereby placing thematadisadvantagecomparedtoothercoastalusers.This disadvantage may be reduced if fisher’s organizations are establishedandlegallyassuredavoiceinthedecision-making process. Putvaluesontheresources Coastalresourcescanbe“valued"relativetothebenefits ofaproposedactivity. Determiningwhichhasmorevalue-the resource or the activity - can be a factor in deciding how resources should be allocated. Social, cultural and economic usesshouldbeconsideredandvalued.Thefactthataresource doesnothavea“marketprice”(i.e.isnotsold),doesnotmean itlacksvalue.Thevalueofcleanairtotheentirecommunity,in Copyrightedmaterial 6 relationtotheeconomiccostsofabadlypolluting industry, is one example. Or, consider a development project such as a proposed shrimp pond, which would destroy an area of mangrove.Thevalueinthemangrove’snaturalroleofproviding afish habitatand protectingtheshorelineagainststormsand cyclones should not be ignored when considering potential costsandbenefitsoftheshrimpfarm. Considerrisksanduncertainties Managementpoliciesshould reflectarangeofpossible outcomes from proposed development projects. Fishery authorities should identify potential threats and ensure that precautionsaretakentoprotectfisheries’interests.Prevention isbest,butifdamageisunavoidable,stepsshouldbetakento minimizeit,compensatestakeholdersandrehabilitatethearea. Theterm“risk”isoftenusedwhentheexacteffectsofa proposed activity are unknown, but the likelihood ofdifferent outcomes can be determined with the information at hand. Insurancemaybeavailableforsomeriskssuchasdamageby an oil spill to a coastal reef or near-shore fishery. To be effective, risk management policies must be supported by a legal framework identifying responsibility and penalties, while recognizingthatsomeeventssimplycannotbeanticipated. Ontheotherhand,whenthereisnotenoughinformation to know the likelihood of certain outcomes, the term “uncertainty” isused. Forexample, the impacton afisheryof flood water from a storm is uncertain and is not normally covered by insurance. It is best to avoid activities where outcomes are totally uncertain or may cause irreversible environmentaldamage. Monitortheenvironment With damage prevention in mind, it is important to identify potential effects ofdevelopment activities as early as Copyrightedmaterial
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