Fisheries Management at the Tri-National Border Between Belize, Guatemala and Honduras

ARTICLE IN PRESS

Marine Policy 33 (2009) 195– 200

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Marine Policy

journal homepage: www.elsevier.com/locate/marpol

Fisheries management at the tri-national border between Belize, Guatemala and Honduras

Arlenie Perez Ã

Institute of Marine Resource Management, National Taiwan Ocean University, Keelung ROC 20224, Taiwan article info abstract

Article history: The Mesoamerican Barrier Reef System has considerably changed after a series of natural disturbances, Received 7 May 2008 especially hurricanes and extreme coral bleaching, and is further impacted by anthropogenic threats. Received in revised form Located at a tri-national border between Belize, Guatemala and Honduras, the Sapodilla Cayes Range is 25 May 2008 specifically impacted by tourism, commercial fishing and other anthropogenic activities occurring in the Accepted 26 May 2008 three countries and by the fact that Belize only claims 3 nautical miles of Exclusive Economic Zone in the south pending a settlement to a border dispute with Guatemala. This area represents a source of Keywords: income and food to several coastal communities and to Belize’s economy. Key fisheries products Mesoamerican Barrier Reef System harvested in the area by the three countries are the same but fisheries legislations and the number of Exclusive Economic Zone fishermen are different, creating conflicts between fishermen. This paper summarizes the key problems Maritime Areas Act that arise in southern Belizean fishing waters and the efforts made by the three countries to ensure the sustainability of the fishery. & 2008 Elsevier Ltd. All rights reserved.

1. Introduction and the economic benefits from goods and services that the reef provides; and for specific assessments that demonstrate how Belize, an English-speaking nation in Central America, is home humans in coastal areas are affected culturally and economically to the Belize Barrier Reef System, second in length only to by natural disturbances like hurricanes that damage ecosystems. Australia’s Great Barrier Reef. This reef system, often referred to as Analyses of short-term losses and long-term gains in the the Mesoamerican Barrier Reef System (MBRS), extends from the designation of ‘exclusion’ and ‘no-take’ areas are also required [4]. southern half of the Yucatan Peninsula to the Bay Islands of Located at the tri-national border between Belize, Guatemala Honduras [1,2]. The MBRS has considerably changed after a series and Honduras, the Sapodilla Cayes Marine Reserve (SCMR) is of natural disturbances [3], especially after hurricane Mitch and specifically impacted by tourism, commercial fishing and other the extreme coral bleaching event in 1998 [4], hurricane Keith in anthropogenic activities occurring in the three countries [9–11] 2000 [5] and hurricanes Chantal and Iris in 2001 [6]. Anthro- (Fig. 1). For Belize, the Sapodilla Cayes represent a source of food pogenic threats that contribute to this change include nutrient and income for several coastal communities. The conflicts that enrichment, sedimentation, overfishing, direct damage1 and oil occur in this area are partially because of the fact that Belize only spills [7]. claims 3 nautical miles of Exclusive Economic Zone in its southern Coastal and island development and unsustainable tourism, marine waters pending a settlement to a border dispute with inappropriate island resource and land use and industrial Guatemala. Ensuring the sustainability of the fisheries products development, overfishing and aquaculture development, inap- harvested in this area is important especially since fisheries propriate port, shipping and navigation practices, natural oceano- legislations and the number of fishermen are different, creating graphic and climato-meteorological phenomena are the principal conflicts between fishermen. threats to the MBRS [8]. The balance between sustainable use This research was conducted in August 2007 in two of the and reef conservation requires the understanding of human use three coastal southern Belizean communities that are the primary and knowledge of the reef. There is a need for an improved users of the SCMR. These are Punta Negra Village and Punta Gorda understanding of how local communities interact with coral reefs Town. Data was collected from the five areas of Punta Gorda Town: Hopeville, Joe Taylor, Indianville, Magoon and downtown Punta Gorda. In 2007, Punta Negra had a population of 18 and Punta Gorda town an estimated population of 5255 [12]. Data on Ã Tel.: +886 939 474 440. E-mail address: [email protected] tourism and fishing was collected from relevant government 1 From boating and diving activities. departments. Data on the SCMR, its conflicts and efforts made to

196 A. Perez / Marine Policy 33 (2009) 195–200

visitors in 2007 decreased to 875,783 making a contribution of 11.4% to the total GDP [15,17–21]. Fishing, like tourism, is important to Belize’s economy and its people. Belize has a total of 169,840 km2 of Exclusive Economic Zone and a total area of 9800 km2 of continental shelf. There are about 3000–4000 fishermen in Belize of which 60% belong to fishermen’s co-operatives [22]. Fisheries production is not reflected in the export earnings, hence not reflected in GDP since most of the produce such as lobster head meat and finfish are sold in the local market due to the increasing demand for seafood from the tourism sector and data collection primarily targets the fishing cooperatives [23]. In 2002 for instance, the Fisheries Department valued exports earnings at $72,587,810.34, which contributed to 7% of Belize’s GDP. However, the Central Statistics Office (CSO) reports that fishing only contributed to 3.4% of GDP for that year and 5.0% in 2003, 4.4% in 2004, 3.8% in 2005 and 3.0% in 2006 [24]. Recent data for the production of conch and shrimp exhibits an increasing trend whereas finfish and lobster productions show the opposite. Fish fillet production, on the other hand, seems to fluctuate.

Fig. 1. Location of the Sapodilla Cayes Marine Reserve at the tri-national border between Belize, Guatemala and Honduras. Source: Google Earth. 3. The Sapodilla Cayes Marine Reserve

Established in 1996, the SCMR is located on the southernmost improved management between the countries were collected part of the Belize Barrier Reef System. The reserve covers an 2 participant observation,2 key informant interviews3 and collection approximate area of 119 km and includes 12 sand or mangrove of secondary data. Three households were interviewed in Punta cayes. These make up approximately 1.6% of the reserve and cover Negra Village and 20 in each area in Punta Gorda Town. an approximate area of 17.67 ha. The remaining 98% of the reserve Households were randomly selected to obtain information about consist mainly of submerged sand in shallow water, a carbonate the conflicts, perceptions and management of the SCMR. The two pavement on the leeside of the reef crest, the coral reef main questions asked were as follows. (1) What are the main component and sea grass beds [25] (Fig. 2). conflicts in southern Belizean fishing waters? (2) What efforts are being done to address these? Data was also gathered on respondents’ age, education and source of income. Responses 4. Territorial claim were categorized and added to secondary data. Conflicts in the Sapodilla cayes date back to the 1800s after Guatemala claimed sovereignty over Belize as an ‘‘inheritance’’ from Spain after the United Provinces of Central America, a union 2. The importance of tourism and fishing of Central American countries that were colonized by Spain, was dissolved. When Belize gained independence in 1981, it inherited Reasons to protect the MBRS are many. In Belize, the two only 3 nautical miles of territorial sea as per British policy with its primary economic reasons include tourism and fishing. Countries colonies. The 1982 United Nations Convention on the Law of the like Belize that have few or no hydrocarbon resources or minerals Sea (UNCLOS) allowed Belize to claim 12 miles of territorial sea. In to exploit, take advantage of their natural and cultural assets to southern coastal Belize where Guatemala borders Belize, it was promote tourism [12]. The economic importance of tourism is difficult to establish a definite borderline. In the case where reflected in its contribution to the Gross Domestic Product (GDP) adjacent states were each unable to claim 12 miles because of the of Belize, the employment it provides and other benefits. Gibson short distance between the two, UNCLOS allows each to be et al. highlight that the MBRS has transformed the country into a entitled to claim up to the median line. Guatemala, however, has mecca for tourism as most of Belize’s tourism is marine-oriented claimed 12 nautical miles of territorial sea since 1939 [26]. The [13]. Economic benefits are earned primarily through visitor Maritime Areas Act of Belize declares a territorial sea of 12 miles enjoyment of coastal resources such as from the coral reefs, cayes all along the coast except for the area in the south from the and marine wildlife; where approximately 60% of the visitors to Sarstoon river, Belize’s southern boundary with Guatemala, to Belize have had a coastal experience [13,14]. Tourism growth Ranguana Caye, where it claims only 3 nautical miles of territorial increased employment rate in recent years. In 2007, the Govern- sea. The area between the 3-mile limit and the median line is ment of Belize reported a decrease in unemployment from 11% to merely reserved, for the time being, to negotiate a sea boundary 9.4% largely because of tourism [16]. Tourism statistics report a with Guatemala. Belize also claims an Exclusive Economic Zone steady increase in tourist arrivals up until 2004. In 2000, tourist (EEZ) of 200 nautical miles. However, wherever the equidistance visitors totaled 253,897, making a contribution of 22% to total line between Belize and Guatemala is less than 200 nautical miles GDP. This number increased to 1,082,264 in 2004, contributing to from the nearest point of the baseline of the territorial sea, the a total of 6.2% to total GDP. However, the total number of tourist delimitation of the Exclusive Economic Zone shall be affected between Belize and Guatemala on the basis of international law in order to achieve an equitable settlement [27]. 2 Time was spent in the SCMR, the SCMR office in Punta Gorda Town, on the Seeing that the Guatemalan claim is a threat, the government coast, fish market and communities, talking to people and observing and participating in their activities. of Belize granted titles for the Sapodilla Cayes to the Belize 3 Such as SCMR staff, fisheries officials, fishermen and non-fishing households. Tourism Board, the University of Belize, the Belize Defense Force, ARTICLE IN PRESS

A. Perez / Marine Policy 33 (2009) 195–200 197

Fig. 2. The Sapodilla Cayes Marine Reserve showing boundaries, cayes and coral reef. Source: Belize Coastal Zone Management Authority and Institute.

the Belize Port Authority, the Fisheries Department and six other together with continuous disregard for fisheries regulations. Small private property owners [28]. Guatemalan tour operators who had scale fishers, as those that fish in the Sapodillas, are constrained long established their base in some of the cayes were peacefully by the insufficient resource assessment studies required to removed by the property owners in 2005. The owners of the cayes, determine maximum sustainable yields, the need to improve nevertheless, maintain strong relationships with the Guatemalan harvesting technologies and greater use of modern equipment, tour operators as they continue to take tourists there. This, the insufficient financial resources to expand beyond the however, becomes a problem as hundreds of tourists coming exploited barrier reef and by the inadequate regulations and from Guatemala flock to the Sapodilla Cayes during Christmas insufficient surveillance/enforcement capabilities in order to and Easter holidays, overwhelming the site’s limited solid, prevent unauthorized utilization of resources by foreign and local sewage and water facilities. There are no available studies on fishers [32]. the carrying capacity or potential impact of tourist activities for The number of fishermen along the coasts of the three the area [29]. countries is perceived as a threat to southern Belizean fishermen as the number of these and southern Belizean coastal communities’ population are far less than the number of fishermen and 5. Fisheries conflicts coastal community populations in Guatemala and Honduras. Heyman and Graham [33] reported that there is an estimated total Notwithstanding that the Sapodillas belong to Belize, Guate- of 4510 inhabitants in Belize’s coastal portion of the Gulf of mala and Honduras use the area as a reference point for their Honduras and the Caribbean Regional Fisheries Mechanism [22] maritime limit, thus creating confusion for the fishermen [29]. estimate a total of 3000–4000 fishermen in the entire country. One of the main problems in southern Belizean waters is the Guatemala’s coastal Atlantic population is estimated at 100,655 Belizean fishermen’s discontent with Guatemalan fishermen people and Honduras’ coastal Atlantic population is about 100,000 fishing in the area, a problem that began since most of the older people [34,35]. Fishing by Guatemalans and Hondurans in fishermen cannot remember [30]. There is evidence that Guate- Belizean waters is perceived by some fishermen as the reason malan and Honduran fishermen illegally fish in Belizean waters. In why fish stocks are depleting, especially since closed seasons are 2005 for instance, the Fisheries Department reports that 13% of either non-existent or do not coincide in the three countries, fishing offences were committed by Hondurans and 12% by encouraging these fishermen to enter Belizean waters to fish. Guatemalans. These included offences such as fishing for under- While Belizean fishermen respect Belize’s lobster and conch sized conch, undersized lobster, no fishing license, no boat license, (Strombus gigas) closed seasons, Guatemala has neither a closed fishing during closed season, fishing in a restricted area and season nor size restrictions for lobster and conch. The reason for fishing with restricted gear [31,32]. In recent times, Belizean this is that both lobster and conch fishing by Guatemalans is fishermen in Punta Gorda Town of southern Belize, express more minimal and the little that is done is carried out by artisanal discontent as the government grants these non-Belizean fisher- fishermen. Guatemala, however, plans to implement a closed men fishing licenses. Some fishermen claim that by granting them season for lobster that will be from July 1 to August 30 [36]. Belize licenses which come along with nationality documents, allows and Honduras have regulations for both species. The closed season certain government representatives to secure a vote in general for lobster in Belize is from February 15 to June 15. The closed elections. As one fisherman noted, not only can they now fish season for lobster in Honduras is from April 1 to June 30 [36–38]. legally in Belize, but can even have their own space at the fish The closed season for conch in Belize is from July 1 to September market to sell their products. Anyone who can pay the fee can 30. In 2003, Honduras placed a permanent moratorium on the occupy a space in the fish market [30]. The Fisheries Department commercial harvest of conch at the request of the Convention on acknowledges that there is inadequate law enforcement and the International Trade of Endangered Species (CITES). However, patrol of the waters due to lack of manpower and facilities, certain sea areas are set aside for its commercial exploitation as ARTICLE IN PRESS

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Table 1 Closed seasons for lobster in Belize, Guatemala and Honduras

Country Month

January February March April May June July August September October November December

Belize February15–June 14 Guatemala July 1–August 30 Honduras April 1–June 30

Note: Guatemala plans to implement a closed season.

Table 2 Closed seasons for conch in Belize, Guatemala and Honduras

Country Month

January February March April May June July August September October November December

Belize July 1–September 30 Guatemala None Honduras April 15 September 1

Note: Honduras has a conch-fishing quota that should not exceed 460,000 pounds per year of clean conch meat. well as there are other areas specifically designated for protecting 6. Maritime boundaries the conch and have a closed season which is from September 1 to April 15 [39]. In 2005, the Government of Honduras and CITES Other problems unrelated to fisheries management such as convened for fisheries science to assess the resources of the illegal settlements, crimes, poaching of wildlife and harvesting of region. It was agreed on a catch not exceeding 460,000 pounds per forest products also arise in southern Belize. However, only the year of clean conch meat of which the fishing industry would be major incidents on the marine boundary are discussed here. In allowed a maximum of four boats with all crew. Specific satellite 2007, a Guatemalan Navy vessel prevented a Belizean Coast Guard location instruments were to be used that would allow CITES to vessel from entering the southern side of the Sarstoon River, a check the location and the time in which conch fishing was river that divides Belize and Guatemala on the landside. The performed. This is part of a 4-year study4 that is expected to have mouth of the Sarstoon River marks Belize’s southeastern border a better view of what should be the true fishing quota. This may with Guatemala and is divided in the middle by the Sarstoon reopen the fishery but while this does not happen, this activity Island. Belize’s border mark is recognized as the deepest channel will remain scientific with four boats only [39,40]. In 2007, the on the southern side. The Guatemalans maintain a naval base on Authorities of the Central American Nations of Guatemala, the banks of the river. After peaceful discussion, Belize agreed that Honduras, Belize, El Salvador and Nicaragua agreed to boost a both militaries would conduct joint border patrols on the river. coordinated lobster season in 2008 that closes from March 1 for 4 However, later that year, Guatemalan soldiers engaged in a hostile months. Belize will maintain its closed season from February 15 to encounter with a marine protected area personnel in Belizean June 14 and will be consulting as appropriate to harmonize with waters. On their way to a community meeting, the co-managers of the rest of the countries in the region [41]. The shaded areas in the Sarstoon Temash National Park (SATIIM) were stopped from Tables 1and 2 represent the closed and open seasons for lobster entering the Sarstoon River by an armed and aggressive and conch in the three countries. Guatemalan military patrol who requested for documentation Although Belizean fishermen see these illegal fishermen as a that SATIIM refused to provide since they were in Belizean waters. threat, they have been able to take advantage of the situation. In The Guatemalan patrol asked them to accompany them to their recent years, the continued increase in the price of oil is perceived base that SATIIM refused to do. They were released after the latter as the reason why the price of fish continues to increase by agreed to report to the Guatemalan base any future trips up the Belizean fishermen. Several fishermen reported the illegal trade of river by Belizeans [43]. Communities on both sides of the river gas between Belizean fishermen and Guatemalan fishermen as the have different flags but share the same resources. As a corollary, price of gas in Guatemala is cheaper than in Belize. the need for joint management is a need since both realize that The discovery of new fisheries may be one way to ease the fish stocks are depleting largely because of shrimp trawlers that stress on over-harvested ones. In 2002, a pilot project to work in the area, including on Belizean waters. SATIIM’s rangers determine the feasibility of using fish aggregating devices (FADs) reported finding a total of 60 trawlers in the same area in one as an alternative fishing method was launched. Two FADs were night. The conflicts continue as fishermen on the Guatemalan side deployed in the Turneffe atoll area in Belizean Coastal waters and set nets on the Belizean side of the river [44,45]. their performances monitored. Recently, a new whelk fishery In December 2004, Ministers of Fisheries, Tourism and the developed in Belize. A study was carried out to determine its Environment of Belize, Guatemala and Honduras signed an abundance, distribution and population structure to ensure its agreement for the adoption and implementation of transboundary sustainable management [32,41,42]. There are no reports available policies in the Gulf of Honduras in Fisheries, Tourism and Marine on the success of these projects. Protected Areas. The governments of the three nations established 10 common agreements in areas of mutual interest focused on the sustainable use of fisheries, tourism and transboundary protected areas in the Gulf of Honduras. These agreements aim to guarantee 4 To be completed in 2008–09. long-term economic prosperity for future generations of fishermen, ARTICLE IN PRESS

A. Perez / Marine Policy 33 (2009) 195–200 199 through the establishment of harmonized closed seasons for coral reefs of the world. GCRMN report. Townsville: Australian Institute of lobster, queen conch and sea turtles. Also addressed in these Marine Science; 2002. p. 303–24. [5] Coastal Zone Management Authority and Institute. The National Integrated agreements are the physical planning, conservation and develop- Coastal Zone Management Strategy for Belize, 2001. ment of heavily used tourist areas in the MBRS region. This [6] Bood N. Ecological status of Southern Belize Reef System; impacts of includes the promotion of Marine Protected Areas that contribute hurricane Iris. Assessment report. Belize City: Coastal Zone Management to the stabilization and protection of the coastal landscapes and Authority and Institute; 2002. [7] Arriviaga A, Garcia MA. Chapter 18: status of coral reefs of the mesoamerican maintain the marine coastal water quality. 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