Towards TAC-based Fisheries Management in Korea - Experiences and Challenges Jungsam Lee Co-organized with the Republic of Korea's Ministry of Ocean in Fisheries October 2, 2018 Contents 1. Production and Policy Goals 2. Introduction of TAC-based Management 3. Expansion and Operation 4. Is TAC-based Management Successful? 5. Current Issues and Future Direction 1. Production and Policy Goals Korea World Decreasing Capture Fisheries Production Fisheries Capture Decreasing x 10000M/T x 10000M/T 10,000 100 150 200 2,000 4,000 6,000 8,000 50 0 0 1970 1971 1950 1972 1952 1973 1954 1974 1975 1956 1976 1958 1977 1960 1978 1979 1962 1980 1964 1981 1966 1982 Aquaculture 1983 1968 1984 1970 1985 1972 1986 1987 Aquaculture 1974 1988 1976 1989 1990 1978 1991 1980 1992 1982 1993 Capture 1984 Coastal& Offshore 1994 1995 1986 1996 1988 1997 *Seaweed included *Seaweed 1998 1990 1999 1992 2000 1994 2001 2002 1996 2003 1998 2004 2000 2005 2006 2002 2007 2004 2008 2006 2009 2010 2008 2011 2010 2012 2012 9,246 2013 170 9,043 106 4 2014 2015 Transition of Fisheries Policy Goals (1970~ 1986) (1987 ~ 1996) (1997~Present) Rapid growth Stagnant Declining period period period Environmental • Increasing harvests • Excessive fishing efforts • Decreased fishing change • Environmental grounds contamination • Depleted fish stocks • Decreased fishing grounds More Production Business Stabilization Sustainable Fisheries Policy goals • Vessel construction • Restructuring started • Intensive restructuring and modernization • Cost reduction • Stock enhancement • Renewing equipments • TAC, Stock Rebuilding Plan 5 2. Introduction of TAC-based Management Fisheries Management Instruments Regulation + Promotion + Others Technical Size, Season, Fishing Measures Ground Regulation Input Control License, Gear, Vessels Output Control TAC, IQ Stock Artificial Reef, Fry Promotion Enhancement Release, Marine Ranching, Marine Forest Others Co-management, Stock Rebuilding 7 Conventional Fisheries Management Is based on input control and technical regulation Started with Fisheries Act legislated in 1953 Needed more fishing vessels to increase production(no reason to regulated output) Technical Size, Season, Fishing Regulation Ground Regulation Input Control License, Gear, Vessels Output Control TAC, IQ 8 Limitations of Korean Conventional Fisheries Management • Fish stocks in the coastal water have been depleted - Decreasing catch(plummeting production of pollock and filefish) - Decreasing CPUE(catch per horsepower) in overall fisheries - Increasing proportion of juvenile fish • Real fishing efforts have increased and offset the effects of vessel and gear restrictions • Technical regulation methods were not flexible in rapidly changing fisheries circumstances • Timely assessment of the fish stocks was neglected by excessively concentrating on input restrictions 9 Horsepower per Vessel & Catch per Horsepower HP M/T 180 Catch per 0.35 horsepower 0.30 150 0.25 120 0.20 90 0.15 60 Horsepower per 0.10 30 vessel 0.50 0 0.00 1990 1992 1994 1996 1998 10 Main Institutional Change Decrease in fisheries landings led to new systems and regulations Korea started TAC for 4 species in 1999 and expanded to 11 species until 2009 Agreement on fisheries b/w 180 Korea and Japan 160 x 10000x 140 Agreement on fisheries b/w 120 Korea and China 100 Fisheries resource management law 80 Self-regulated fisheries Fisheries rebuilding plan 60 40 TAC, Marine ranching Fishing vessel 20 decommission 0 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 Coastal & Offshore 11 3. Expansion and Operation Expansion of TAC-based Management 1. Pre-test Stage Mackerel(large purse seine fishery) (Sep.16 ~ Oct. 30, 1998) 4 species(mackerel, jack mackerel, sardine, Red 2. Second Stage queen crab) (1999 ~ 2001) 2 fisheries(large purse seine, off-shore trap fishery) 3 species added(purplish washington clam, pen shell, 3. Third Stage Jeju island top shell) (2001) 2 fisheries(diver fishery, village fishery) 2 species added(Snow crab, blue crab) (2002 ~ 2003 ) 1 fisheries(off-shore gill net fishery) 3 species added(squid, sandfish, mottled skate) (2007 ~ 2009 ) 1 species dropped(sardine) 6 fisheries including large trawl and offshore squid jigging 13 TAC Determination Criteria High commercial value with large production volume - mackerel, jack mackerel, sardine Conservation Purpose(seriously depleted stocks) - snow crap, purplish Washington clam, Pen shell Trans-boundary species (needs international management with adjacent countries) - mackerel, jack mackerel, sardine Necessity of local management - Jeju island top shell, purplish washington clam, mottled skate 14 TAC Species sandfish Blue crab Red queen crab Mottled skate Snow crab Purplish washington Common clam squid Pen shell mackerel Top shell Jack mackerel SCIENTIFIC STOCK ASSESSMENT & MONITORING, DESIGNATION OF SELLING AREAS, PROVIDING INCENTIVES TO PARTICIPATING FISHERMEN 15 Process of TAC Creation by Central Gov. Stock Assessment Establishment of Annual TAC Opinion Collection (NIFS) Implementation Plan From Industries (Deliberation of the TAC Council) Deliberation of the Central Fisheries Management Committee By Fisheries, TAC Set-Up By Fishing Area, By Fishing Period 16 Process of TAC Creation by Regional Gov. Opinion Collection Establishment of Annual TAC Opinion Collection from NIFS Implementation Plan from Industries Deliberation of Regional Fisheries Management Committee Approval of MOF By Fisheries, TAC Set-Up By Fishing Area, By Fishing Period 17 TAC Allocation System TAC Set-Up Allocation for Regional Allocation for Minister < 90% of TAC> < 90% of TAC > Governors President of President of Regional Coops Allocation Plan Allocation Plan Coops by Fishery And Fishermen And Chiefs Of Other Associations Assignment to Assignment to Fishermen Fishermen Distribution of Distribution of Allocation Certificate Allocation Certificate < 10% of the Remaining Quotas can be adjusted by < 10% of the remaining TAC > Provincial Gov. depending upon each remaining TAC > TAC Species’ or each fisheries’ situation 18 TAC Monitoring System 85 observers from FIRA cover 118 designated selling areas (`00) 9 → (`06) 15 → (`07) 30 → (`09) 43 → (`10∼) 70 → (`18∼) 85 19 TAC Monitoring System Check landing volume Sample classification Check bycatch Check size limit composition 20 4. Is TAC-based Management Successful? 21 Plummeting Coastal & Offshore Production Coastal and offshore production hit the historic low in 2016 since 1972 908 thousand M/T in 2016 and 927 thousand M/T in 2017 200.0 180.0 160.0 x 10000MT 151 ('17) : 0.93 million 140 140.0 M/T 120.0 113 100.0 93 116 80.0 60.0 40.0 20.0 0.0 1970 1972 1974 1976 1978 1980 1982 1984 1986 1988 1990 1992 1994 1996 1998 2000 2002 2004 2006 2008 2010 2012 2014 2016 자료 : 수산정보포털 22 Causes of Plummeting Production Overfishing, derelict fishing gear and ghost fishing, climate change and destruction of marine forest, illegal squid fishing by foreign vessels Overfishing by Korean vessels’increased fishing capacity(horsepower still increase) TAC-based management failed to expand and work as central fisheries management instrument(TAC species cover only 30% of total production) 1,000 M/T 2,000 800 1,726 1,624 1,500 595 600 513 443 916437 1,000 398 400 323 500 200 100 0 0 1986 1988 1990 1992 1994 1996 1998 2000 2002 2004 2006 2008 2010 2012 2014 2016 Catch(M/T) Horsepower(hp) Note : Horsepower is recalculated as of 1986 23 100 150 50 Note : Catches are recalculated based on the average catches of 2 or 3 years before TAC implementation TAC 2 or 3 years before of on based the catches average recalculated are Catches : Note - 1999 Chinese Chinese Compared Compared nonwith of TACproduction decreased TACspecies species, less Rapid Rapid decrease in is largely duedecreased2017 tocaused squid by production 2000 Species Production of TAC 2001 2002 2003 vessels’overfishing TAC species TAC exluded) species(seaweed Non-TAC 2004species(finfish) Non-TAC 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 76 100 150 200 50 0 1999 2000 Mackerel 2001 2002 2003 2004 Jack Jack mackerel 2005 2006 2007 2008 2009 2010 Red queen crap Red 2011 2012 2013 2014 2015 2016 80 24 2017 62 82 95 Production of TAC Species Except for mackerel and squid, overall production of TAC species increased after TAC adoption 600 300 500 250 400 200 163 300 150 200 186 100 100 87 50 44 0 0 1999 2001 2003 2005 2007 2009 2011 2013 2015 2017 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 Pen shell Snow crap Blue crap Squid Sandfish 25 5. Current Issues and Future Direction Current Issues TAC set higher than stock status - Even though runout rate is lower than TAC, stock status does not improve Lack of monitoring : only 70 observers cover118 designated landing places - Observers : (`00) 9 → (`06) 15 → (`07) 30 → (`09) 43 → (`10∼) 70 → (`18∼) 85 Many fisheries catching TAC species do not participate TAC allocation process Stock status Quota runout rate(%) Species Stock status Direction Species 2015 2016 2017 Total 72.6 80.9 61.0 Mackerel Middle Stagnant Squid 71.3 68.8 42.4 Jack mackerel Middle Stagnant Mackerel 73.0 96.6 76.8 Jack 75.8 62.9 58.9 Squid Middle Stagnant Mackerel Sandfish 58.5 92.4 72.7 Sandfish High Increasing Red queen 89.1 88.1 73.6 crap Snow crap Low Stagnant Blue crap 35.4 59.4 63.0 Blue crap Middle Decreasing Snow crap 46.7 70.1 102.2 Pen shell 66.3 63.6 75.8 Pen shell Middle Stagnant Red queen crap High Stagnant 27 Future direction Main Goal Conventional