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The Governance of Artisanal Fisheries in the Sherbro River Area of Sierra Leone

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The Governance of Artisanal Fisheries in the Sherbro River Area of Sierra Leone The Governance of Artisanal Fisheries in the Sherbro River Area of Sierra Leone This project is funded by A report by The European Union Environmental Justice Foundation EXECUTIVE SUMMARY © EJF This report sets out the historic and existing governance arrangements for artisanal fishing in the Sherbro River Estuary (hereafter ‘the Estuary’), where fishing is vital to the livelihoods and food security of local communities. It uses research from 17 community visits and interviews of key stakeholders to analyse current and historic conditions at the levels of local communities, traditional authorities, local government and central government. Four key findings and recommendations are summarised below: 1. FINDING: After seven years of decentralisation, local councils are not perceived to be effective at fisheries management: The clearest consensus in the area of governance to arise during the community engagement process regarded the perceived ineffectiveness of local councils. Even within the councils themselves, there was widespread agreement that they did not currently have the capacity to assume their statutory duties in the area of fisheries management. More broadly, fishing communities across the Estuary did not identify closely with the councils or their elected representatives. RECOMMENDATION: For councils to become effective in the area of fisheries management, they must not only build technical capacity in the fisheries sector but also improve their overall legitimacy as representative and accountable democratic institutions. This can be done in part through increasing contact with elected officials and pooling the regulatory resources of the Estuary’s two councils. The Government and partner NGOs must address this as part of the development of an MPA and associated co-management bodies. 2 Governance Study 2. FINDING: Other layers of governance have begun to informally and haphazardly fill the vacuum left by local councils: With councils currently unable to manage the Estuary’s fishery, other organisations are taking on their roles. The most conspicuous example of this is the Sittia and Imperi Chiefdoms, that both collect licenses for artisanal vessels in some of their constituent villages and pass little or none of the funds raised to local councils. Crucially, however, this is not occurring uniformly. In the other chiefdoms visited, no licensing has occurred for several years. The management vacuum is also being filled from above. Bonthe Municipal Council, for example, outsourced license collection in the municipality to MFMR. In the immediate future, the new Fisheries Act may recentralise the responsibility for licensing semi-industrial fishing vessels, returning this responsibility to the Ministry of Fisheries and Marine Resources (MFMR). RECOMMENDATION: The development of the MPA must consider and formalise a uniform role for traditional authorities in fisheries management in the Estuary. The level of this role, if any, should be determined in close consultation with local communities and democratically-elected councillors. A harmonised approach across chiefdoms is important to ensure there are not pockets of weak governance. 3. FINDING: The 2009 net burning exercise was extremely controversial and has decreased trust in government in many communities. Though six communities were broadly supportive, there is deep-seated anger in the remaining 11 communities following the enforcement exercise, during which they reported that promises of net replacements were made. In some cases this anger has led communities to refuse to pay licenses to local or traditional authorities, and some officials have expressed fears that further enforcement exercises could produce civil unrest if conducted in a manner similar to 2009. This anger must be addressed if confidence in Government is to be restored. RECOMMENDATION: A transparent, universal subsidised net replacement programme is an important, early aspect of engaging communities in co-management of the future MPA. Without it, many communities will remain extremely suspicious of all level of government and will resist annual registration and net enforcement exercises. 4. FINDING: Local communities play a crucial, inventive and variable role in fisheries management of their areas: From the collection of user fees from visiting vessels to enforcing basic practices of fishing etiquette to developing and enforcing no-take seasons, many local communities have employed initiative and inventiveness in managing their fisheries. This offers encouragement to plans to involve communities in the management of a Marine Protected Area (MPA) through “co-management” structures. However, these findings also demand caution. The variable extent and quality of local fisheries governance suggests some communities may take more advantages from co-management than others. There is also the risk that conflicting local rules are emerging in neighbouring communities and that, collectively, local rules will not prevent overfishing across the Estuary. RECOMMENDATION: Any MPA must be designed in a way that recognises, promotes and formalises existing fisheries management techniques practiced by local communities and encourages similar practices to be developed in other communities. At the same time, it must remain aware of the risk that local practices in neighbouring communities may be inconsistent or even incongruous. Governance Study 3 INTRODUCTION The importance of fishing in Sierra Leone: Like many West African countries, fisheries are critical to the lives and livelihoods of coastal communities in Sierra Leone. The country is still recovering from a brutal 11-year civil war that came to an end in 2002, killing and displacing tens of thousands of people. This has in part led to Sierra Leone being one of the least developed nations in the world—it is ranked 158th out of 169 countries in the 2010 UN Human Development Index. Currently 70% of the population lives below the national poverty line, 58% are severely deprived in terms of health and 46% are undernourished1. Sierra Leone’s child mortality rate is amongst the highest in the world, with one in five children dying before the age of five2. Fisheries are one of the few sources of income and livelihoods for many coastal communities. In 2006 the fisheries sector contributed 9.4% of Sierra Leone’s GDP and in 2005 it employed 243,500 people. Of these, 30,000 were artisanal fishers and the remainder were employed in the artisanal secondary sector. Fish is also the most affordable and widely available protein source in Sierra Leone, contributing 64% of animal protein consumed3. The governance of artisanal fisheries is thus of vital importance not only to the hundreds of thousands who depend on fishing for their livelihood, but also the population as a whole who depend on fish for food security. The Sherbro River Estuary: The Sherbro River Estuary, on the south west coast of Sierra Leone, is made up of two wide river arteries, which flow around the eastern and palm products in the 19th and early 20th century. These industries— along with electricity, modern buildings, and other elements of a bustling regional economic centre—are now long gone. In their absence, fishing by artisanal vessels operating from the Estuary’s several dozen fishing communities is relied upon almost exclusively to keep the local economy afloat. Most fish are consumed or sold locally or to the interior of Sierra Leone, with very little exported. While the communities of the Estuary contain artisanal fishermen, foreign industrial trawlers ply the oceanic waters off the coast, and have been frequently documented entering the river estuary itself, illegally entering the Inshore Exclusive Zone (IEZ) that extends five nautical miles off the coast, damaging local fishing gear and reducing the number of fish entering the Estuary. As a result, there is not only enormous pressure on the area’s marine resources, but also on local fishing communities. This pressure was augmented by the influx of migrants from other areas of Sierra Leone during the civil war to the relative safety offered by the Estuary. Many of these migrants have remained and taken up fishing. The combination of scant alternative livelihoods, the destructive presence of trawlers, recent population increases and stagnant development places enormous pressure on the region’s marine resources. Consequently, these resources appear to be sharply declining in productivity4. © EJF 1 United Nations Development Programme (UNDP), (2010). Human Development Report 2010, New York. 2 (WHO) World Health Organisation (2010) World health Statistics for 2010. [online] available at: www.who.int/whosis/whostat/EN_WHS10_Full.pdf 3 Laurenti, G. (comp.), (2008). 1961–2007 fish and fishery products: world apparent consumption statistics based on food balance sheets. In FAO yearbook. Fishery and Aquaculture Statistics.2008/FAO annuaire.Statistiques des pêcheset de l’aquaculture. 2008/FAO anuario.Estadísticas de pesca y acuicultura. 4 More socio-economic information on the area, see: Environmental Justice Foundation, 2010, Socioeconomic Report of the Sherbro River Communities in Sierra Leone. 4 Governance Study EJF’s EuropeAid project: EJF is implementing a 5-year EuropeAid funded project with local partners, the Conservation Society of Sierra Leone (CSSL), to support the development of Co-managed Marine Protected Area’s in Sierra Leone. The project commenced on January 1st 2011. EJF is building on its existing work with coastal communities in the Sherbro
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