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 Decreasing Capture Fisheries Production
10,000 9,246 9,043 8,000
6,000 x 10000M/Tx
4,000 World 2,000
0
1950 1952 1954 1956 1958 1960 1962 1964 1966 1968 1970 1972 1974 1976 1978 1980 1982 1984 1986 1988 1990 1992 1994 1996 1998 2000 2002 2004 2006 2008 2010 2012 Aquaculture Capture *Seaweed included
200 170
150
100 x 10000M/Tx Korea 106 50
0
1970 1971 1972 1973 1974 1975 1976 1977 1978 1979 1980 1981 1982 1983 1984 1985 1986 1987 1988 1989 1990 1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015
Aquaculture Coastal & Offshore 4 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
x10000MT 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 Production of TAC Species
Compared with non TAC species, production of TAC species decreased less - Rapid decrease in 2017 is largely due to decreased squid production caused by Chinese vessels’overfishing
150 200
150
100 100 95 80 82
62 50 76
0
50
1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017
2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 1999 Non-TAC species(finfish) Mackerel Jack mackerel Red queen crap Non-TAC species(seaweed exluded)
TAC species
Note : Catches are recalculated based on the average catches of 2 or 3 years before TAC implementation 24 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 management failed to reduce increasing fishing capacity
From an additional and formal output management instrument
to a central fisheries management instrument
- Expand TAC species to cover 70-80% of coastal and offshore fisheries production
Future Direction
Expand TAC species and participating fisheries - Implement TAC to species of which stock decreases(from voluntary participation to designation of species and relevant fisheries) - Expansion of participation to fisheries in excess of 10% of TAC fish production Strengthen dockside monitoring - increase observers from 85 to 250 to cover 118 main landing places
28 Future direction Future Direction
Strengthening scientific stock assessment - Expand role of Fisheries Resources Research Center and build stock assessment ships(build additional1,500 ton class research ship and increase researchers from 11(2018) to 43(2022)) - Conduct additional stock assessment during extreme catch variation and increase runout rate of allocated quota Develop more incentive for fisheries to expand voluntary participation to TAC program - Introduce income insurance to protect TAC program participating fishermen
29