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 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 ) (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 ) (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 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