Preparation of the Horse Mackerel (T. Trecae) Management Plan for Angola

"Strengthening Fisheries Management in ACP Countries"

Preparation of the Horse Mackerel (T. trecae) Management Plan for Angola

Support for the devising of the management plan for the Horse Mackerel fishery Angola and Namibia Project ref. N° SA-1.2-B5 REL

Region: Southern Africa Country: Namibia, Angola

27 October 2013

Assignment by: COFREPECHE

Project Funded by the This publication has been produced with the assistance of the European Union. The European Union contents of this publication are the sole responsibility of COFREPECHE and can in no way be taken to reflect the views of the European Union.” “The content of this document does not necessarily reflect the views of the concerned governments.”

TABLE OF CONTENT

1 Executive summary ...... 1 2 Background and context ...... 2 2.1 Introduction ...... 2 2.2 Objective of the report ...... 2 3 Policy and objectives for the horse mackerel fishery ...... 3 3.1 National policy context ...... 3 3.2 Sector policies and plans ...... 3 3.3 Fisheries planning and management process in Angola ...... 4 3.4 Horse mackerel fishery policy and plans ...... 4 3.5 International policy dimensions ...... 5 4 State of the horse mackerel fishery in Angola ...... 6 4.1 State of the horse mackerel resources ...... 6 4.2 Fishing operations ...... 7 4.2.1 Fishing capacity and effort ...... 9 4.3 Catches of horse mackerel and related small pelagics ...... 10 4.4 The fishery economy and the horse mackerel import regime ...... 12 5 Management measures, rationale and outcomes...... 14 5.1 Defining the fishery and management unit ...... 14 5.2 Management framework and outcome of current management measures ...... 14 5.3 Resource conservation and rebuilding measures ...... 15 5.3.1 Setting the TAC ...... 15 5.3.2 Catch and catch reporting ...... 16 5.4 Capacity and effort control measures ...... 19 5.5 Harvest control measures ...... 20 5.6 Compliance ...... 22 5.7 Post-harvest and market activities ...... 23 5.8 Costs of management ...... 25 5.9 Dealing with uncertainty ...... 25 6 Fisheries Management Plan ...... 26 6.1 Existing policies and plans ...... 27 6.2 Existing institutional arrangements and their improvement ...... 27 6.3 Existing management measures ...... 28 7 Conclusions and recommendations ...... 32

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7.1 Conclusions ...... 32 7.1.1 Policy, planning, legal and institutional framework ...... 32 7.1.2 Effective use of policies plans and laws ...... 33 7.1.3 Knowledge development and management ...... 34 7.1.4 Institutional cooperation and communication ...... 35 7.1.5 Information systems ...... 37 7.1.6 Role of industry ...... 38 7.1.7 Monitoring and evaluation of outcomes ...... 38 7.1.8 Transboundary cooperation...... 39 7.2 Recommendations ...... 39 8 Annexes ...... 41 8.1 Annex I. Future directions FMP project proposal ...... 41 8.1.1 Background and need for the project ...... 41 8.1.2 Project purpose and objectives ...... 41 8.1.3 Outcomes ...... 42 8.1.4 Project components ...... 42 8.1.5 Costs, sources of finance and project timescale ...... 44 8.2 Annex II. Study context and process ...... 47 8.2.1 ACP Fish II project and contributions of partners ...... 47 8.2.2 Schedule of field visits ...... 47 8.2.3 List of persons met and contact information ...... 47 8.3 Annex III. National workshop report ...... 49 8.3.1 Objectives of the workshop ...... 49 8.3.2 Proceedings of first plenary session ...... 49 8.3.3 Workshop agenda ...... 50 8.3.4 Structure and tasks of the working groups ...... 51 8.3.5 List of participants and photographs (Angola National Workshop) ...... 56 8.4 Annex IV. Supplementary background information ...... 59 8.4.1 The Benguela Current system - oceanography ...... 59 8.4.2 Biology...... 61 8.4.3 Trends in the horse mackerel fishery ...... 61 8.4.4 Management measures summary ...... 64 8.4.5 Key extracts from policy documents ...... 65 8.4.6 Summary of the role of the Benguela Current Commission ...... 66 8.4.7 Drivers synthesis ...... 67 8.4.8 Management scenarios for horse mackerel stock recovery in Angola ...... 69

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8.4.9 Selected references ...... 70

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List of tables

Table 1. Characteristics of the small pelagics purse seine fleet based on available licensing information ...... 10 Table 2. Reported catches of horse mackerel (both species) in Angola 1995-2012 ...... 11 Table 3. Main management measures applicable to the horse mackerel fishery ...... 15 Table 4. Reported purse seine landings January-July, 2013 ...... 17 Table 5. Reported landings of carapau and sardinha Jan-Jul 2013 ...... 18 Table 6. Reported bycatch of carapau by the demersal trawl fleet, Jan-July 2013 ...... 19 Table 7. Numbers of small pelagic purse seine vessels licensed or operating ...... 20 Table 8. Total allowable catch and closed seasons for carapau 2010-2013 ...... 21 Table 9. Estimated artisanal landings of carapau, 2012 (tonnes) ...... 62 Table 10. Total recorded catches in Benguela province in 2012 (tonnes) ...... 63 Table 11. Projected TACs (POPES) ...... 64 Table 12. State and management of the small pelagics fisheries 2003-2005 ...... 64 Table 13. Projected fleet capacity (POPES) ...... 64 Table 14. Fleet composition in 2012 ...... 65 Table 15. Drivers ...... 67

List of figures

Figure 1.Total carapau biomass trends 1985-2013 ...... 7 Figure 2. Biomass trends in relation to reported catch and TAC ...... 7 Figure 3. Distribution of horse mackerel in Angola waters ...... 9 Figure 4. Number of semi and industrial vessels in the purse seine fishery in Angola (per year) ...... 10 Figure 5. Reported landings of small pelagics in Benguela province 2012 from the purse seine fleet ...... 11 Figure 6. Carapau and sardinha landings by month and province Jan-July 2013 ...... 18 Figure 7. Illustration of classical model used to estimate MSY and MEY ...... 35 Figure 8. Examples of FMP activities requiring close institutional cooperation ...... 36 Figure 9. Conceptual model of selected elements of the information system ...... 38 Figure 10. National Workshop: Opening, participants and activities ...... 58 Figure 11. Decadal changes in the Benguela current system ...... 59 Figure 12. Warm (red) and cold (blue) oceanographic events off the Angolan coast 1982 - 2006 ...... 60 Figure 13. Changing sea surface temperatures in Angolan waters in hot and cold seasons ...... 61 Figure 14. Variability in length distribution of T. trecae 2004-2006; trend in CPUE of T. trecae (1998-2005) ...... 62 Figure 15. T.capensis biomass from Nansen cruises 1996-2013 (data from INIP) ...... 63

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Abbreviations and Acronyms

ABF Angola Benguela Front (Oceanographic boundary) ABFZ Angola Benguela Frontal Zone ACP Africa – Caribbean - Pacific BCC Benguela Current Commission BCLME Benguela Current Large Marine Ecosystem CG Conselho de Gestão cm centimeter CPI Consumer Price Index CPUE Catch Per Unit Effort CT Conselho Tecnico DNPPRP Direcção Nacional de Pesca e Protecção do Recursos DP Decreto Presidencial EAF Ecosystem Approach to Fisheries EU/ EC European Union/ European Commission FAO Food and Agriculture Organization FMP Fisheries Management Plan/ Plano de Gestao de Pescaria (PGP) GDP Gross Domestic Product GPS Global Positioning System HP Horse Power HR Human Resources LOA Length Over All GRT Gross Registered Tonnage INE Instituto Nacional de Estatisticas INIP Instituto Nacional de Investigacao Pesqueiro IRD Institut de Recherche pour le Développement IPA Instituto de Pesca Artisanal e da Aquacultura m meter m3 cubic meter mm millimetre MCS Monitoring Control and Surveillance (≈ fiscalizacao) MEY Maximum Economic Yield MSY Maximum Sustainable Yield NOAA National Oceanic and Atmospheric Administration OMP Operational Management Procedure PGP Plano de Gestao de Pescaria POPES Plano de Ordenamento das Pescas RSW Recirculating Sea Water SADC Southern African Development Community SNF Servico Nacional de Fiscalizacao (MCS office) SST Sea surface temperature t tonne TAC Total Allowable Catch ToRs Terms of Reference UNOPS United Nations Office for Project Services VMS Vessel Monitoring System (SCS) y year

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Acknowledgements

This preparation of this Management Plan for the Angolan horse mackerel fishery has been funded by the ACP Fish II Programme “Strengthening Fisheries Management in ACP Countries”, project SA-1.2-B5 REL. The BCLME SAP-IMP Project assisted with the funding and organisation of national and regional workshops in Angola and Namibia.

The compilation of the plan was undertaken by Kieran Kelleher and Dave Japp with support and consultation with Dave Boyer (who undertook the Namibian component), on behalf of COFREPECHE, an international company specialised in fisheries, aquaculture and marine environmental consulting.

The preparation of the management plan was a joint effort and would not have been possible without the close consultation with the Angolan technical team lead by Dr Maria Sardinha (DNPPRP) and Dr Filomena Velho (INIP). Information and data used in this plan were provided by the Angolan Technical Team and many others and they are thanked for their time and effort in making this project a success.

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1 EXECUTIVE SUMMARY The ACP Fish II project engaged COFREPECHE to prepare a Fisheries Management Plan (FMP) for the horse mackerel fishery in Angola. The COFREPECHE team1 worked closely with the Ministry of Fisheries and other key stakeholders from August to October 2013. Time constraints did not allow more than one field visit to Benguela province. In accordance with the Terms of Reference a national workshop was held in Luanda 18-19 September, 2013. The workshop concluded and the Ministry agreed that the proposed management plan should focus on the small pelagics fishery as the key management unit, while using the fishery for Cunene horse mackerel (Trachurus trecae), commonly known as carapau in Angola as a core focus of the management plan. This decision reflects the fact that most of the carapau catches are a minority component of other fisheries - approximately 20 % of the catch of the small pelagics purse seine fishery and in the order of 15 % of the demersal trawl fishery.

The team produced the main draft report for discussion by the Angolan stakeholders, a range of presentations on management plans, and organised and backstopped the national workshop run by the Ministry and its dependent institutions. A second workshop was organised on 7 October 2013 to discuss the draft report and the current document responds to the concerns and observations of the Ministry.

The formal institutional arrangements in Angola are fully adequate for development and implementation of an FMP. The legal and administrative structures are in place and the current suite of management measures is adequate for the purposes of managing the fishery. However, the information base to tune the management measures, the articulation between the various measures, and the application and enforcement of the measures requires improvement. In addition, the human resource base and information system also requires strengthening.

The findings from this study to formulate a management plan for the horse mackerel species T. trecae have shown clearly that managing a single species of horse mackerel (T. trecae) in a fishery that catches several other small pelagic species is not advisable, nor consistent with the Ecosystem Approach to Fisheries. The recommendations have therefore concentrated on the steps required to build the capacity to formulate an FMP for the multi-species small pelagic fishery including both species of sardinella and both species of horse mackerel. The FMP would be based on sound biological and economic advice, on building the ability to fully implement and enforce management measures and to monitor, evaluate and adjust the management regime. To meet the changing requirement of a volatile and uncertain fishery, where the state of the fish stocks are influenced both by erratic oceanographic conditions and fishing pressure.

The development of a full FMP for the carapau fishery in Angola during the short duration of this project is therefore extremely challenging. Although there is an urgent need to develop a plan for the fishery it should be done in a systematic and structured manner.

1 K. Kelleher (Angola) and D. Japp (Team Leader), COFREPECHE consultants.

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2 BACKGROUND AND CONTEXT 2.1 Introduction Fisheries Management Plans (FMPs) are a useful tool to coordinate and prioritise stakeholder efforts to attain the objectives for the fishery. A range of FAO and other publications indicate the nature and content of an FMP. In response to requests from two Benguela Current Commission (BCC) member countries (Angola and Namibia), the EU-funded, ACP Fish II Programme has provided support for preparation of management plans for the horse mackerel fisheries. Under the project, three documents are being prepared: national plans for Angola and Namibia and recommendations for cooperation between these countries with regard to the transboundary dimensions of the horse mackerel fisheries. The latter would provide a basis for discussions in expectation of future formal arrangements for specific fisheries cooperation between the countries within the framework of the BCC. The horse mackerel fishery is of significant socio-economic importance to Angola and the project responds to Angola’s priorities, the emerging strategic action programme of the BCC and the EU country strategy.

COFREPECHE was contracted by ACP Fish II to provide the necessary expertise and BCC (implemented by UNOPS) charged with organising the required stakeholder consultations through national and regional technical workshops. This report presents the outputs from the preparation of the Angola horse mackerel management plan.

2.2 Objective of the report An FMP is regarded as an adaptive process to achieve the objectives of the fishery, rather than a static document. In Angola, a formal process for preparation of fisheries plans is described in Articles 12-18 of Law No. 6-A/04, which sets out the nature of the plans and specific processes for consultation and reporting. As the timescale for delivery of the horse mackerel FMP through ACP Fish II support is short, and at the end of the ACP Fish II Programme, the project was not designed to complete this formal process.

The output cannot therefore be considered as a formal management plan but as a major step in a formal process of FMP preparation.

In line with the modalities for preparation of the plans as set out in Law No. 6-A/04 and the project Terms of Reference, the report has three objectives:

to propose objectives for the plan which are consistent with national and sector objectives, policies and strategies and align and support existing plans; to collect, collate and analyse the available information required to prepare a robust fisheries management plan for the horse mackerel fishery; to describe a process to complete a management plan for the horse mackerel fishery, including identification of the knowledge, institutional and human resource gaps, identification of policy conflicts and to suggest approaches to their resolution.

The draft report was presented for review at a national meeting. As requested by the Ministry, Annex 8.2 is provided as an outline project document to assist the Ministry in sourcing resources to further develop the FMP. The report draws on information and recommendations provided by participants at a National Workshop described in Annex 8.3. In particular, the report draws on a key recommendation that the horse mackerel fishery must be considered as part of the larger fishery for small pelagic species and that the key management unit should be considered as the small pelagics fishery. A prior ACP Fish II initiative developed a transboundary FMP for two species of sardinella with Angola’s northern neighbours.

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3 POLICY AND OBJECTIVES FOR THE HORSE MACKEREL FISHERY 3.1 National policy context Angola’s long-term vision2 and medium term national objectives3 include maintaining national cohesion, improving the quality of life and assuring the basic requirements for development. There is also an emphasis on youth involvement, private sector development and competitivity. Equity, reduction of extreme poverty and hunger and improved competitiveness are targeted. Regional development is also an important dimension of maintaining national cohesion and in the southern provinces the fishing industry is potentially an important contributor to regional development.

Angola’s economy is rebounding after a period of relatively weak growth, with GDP expanding by an estimated 8.1 % in 2012. GDP growth is projected at 7.2 % in 2013 and 7.5 % in 2014, driven largely by the oil and gas sectors. Oil revenues (IBRD, 2013) are the primary source of government revenue and in 2012 a combination of high oil prices and rising production boosted GDP growth and generated a large increase in fiscal revenues, enabling the government to increase public expenditures. Public investment accounts for about 10 % of Angola’s GDP, while private investment represents 3 %, compared to a Sub-Saharan Africa average of 13 % suggesting a relatively fragile investment climate4. The growth of the manufacturing sector was an estimated 1.3 %, down from 13 % in 2011 and 10.7 % in 2010. Between 2011 and 2012, Angola’s real effective exchange rate appreciated by 9 %. Inflation fell to 9 %, the lowest rate in more than two decades, due to declining global food prices and the efforts of the Angolan central bank to stabilize the nominal exchange rate. The stronger kwanza (local currency) has had a negative impact on Angolan manufacturers and primary producers, such as farmers and fishers, who compete with a declining cost of imported food. Real consumer price increases show a declining trend from over 10 % per annum in 2010 to a projected 7.7 % in 2014.

3.2 Sector policies and plans The main fisheries sector strategic planning instrument is the “Plano de Ordenamento das Pescas (2006-2010)” (POPES). A revised and updated Plano is under preparation. POPES emphasises the sector’s role in promoting core national objectives of combatting hunger and poverty and maximising socio-economic benefits within a framework of sustainable development. POPES has four themes:

(i) produce more and better; (ii) sustainable development; (iii) innovation; and (iv) human resource development.

It provides a context and targets for annual management measures and their review, adjustment and alignment with other instruments, such as coastal zone plans, or the plans and strategies of other sectors, including those of the petroleum sector and marine emergency response. The Plano is grounded in an Ecosystem Approach to Fisheries (EAF) and notes that economic development is not an end in itself but a means to improving the quality of life.

The Plano calls for a determination of the key fisheries, their management objectives, management measures and associated allocation and regulatory frameworks. A review of the state of implementation of the Plano was made in 2011 and a new “Plano de Ordenamento das Pescas” is in preparation for the 2013-2017 period. The implementation of the POPES (2006-2010) was disrupted by the amalgamation of the fisheries Ministry into the Ministry of agriculture and rural development and its subsequent re-establishment as a separate fisheries Ministry in late 2012. The state of

2 Estratégia Nacional de Desenvolvimento de Longo Prazo“Angola 2025” 3 Plano Nacional de Desenvolvimento de Médio Prazo (2013-2017) (PND) 4 IBRD 2013. Doing Business Angola 2013.

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Support for the devising of the management plan for the Horse Mackerel fishery Angola and Namibia Final Technical Report - Preparation of the Horse Mackerel (T. trecae) Management Plan for Angola (AFA159R03CEN) implementation was reviewed in 2011 through an FAO assessment which affirmed that substantial additional efforts were required.

3.3 Fisheries planning and management process in Angola Three core legislative instruments5 are the fisheries Law (Lei 6-A/04), the Law defining the maritime boundaries and the Law on private investment. An annual presidential Decree contains the detailed management measures applied, including Total Allowable Catches (TACs) and closed seasons. A further annual presidential Decree provides for duty free quotas for import of horse mackerel (DP 2/13).

The key provisions of the Lei 6-A/04 (the Fisheries Law) include: setting of TACs – seen as a primary measure; granting of rights (a complex of fishing rights and other rights) and fishing licenses; granting of quotas (Art 35) and criteria for their allocation (Art 22) where preference is given to operators with land-based infrastructure (such as processing plants), with proven capability and record of responsible behaviour; specifying fishing effort – including species restrictions, minimum sizes, zones, limits on numbers of vessels, closed seasons, gear restrictions, and other measures.

These measures generally require supplementary instruments (usually a ministerial decree) and consultation with stakeholders and technical advisors thorough three main bodies: the Technical Council, the Council for Integrated Management of the Living Aquatic Resources and the consultative Council (which is more open to the public) which provide consolidated advice to the Minister on the management measures to be approved by the Council of Ministers. A range of industry stakeholders, including representatives from the artisanal fishery, coastal communities and other institutions invited are represented on the Council for Integrated Management and the Consultative Council which is provided with the recommendations and advice of the Technical Council. The main management measures for the next calendar year are set out in an annual presidential decree. For example, Decreto Presidencial n° 4/13 de 3 de Janeiro sets out the management measures for 2013, including the technical measures applied to the horse mackerel fishery. The Decreto specifies the TAC, closed season, vessel limits and other key measures for all fisheries was prepared through the consultation process described above.

3.4 Horse mackerel fishery policy and plans Based on national and sector policy documents two main objectives for the horse mackerel fishery can be distinguished:

(a) Food supply. Horse mackerel, or carapau, is a preferred food in Angola. Its importance in the national diet, in particular for middle income consumers, outweighs its economic importance. In other words, the supply of horse mackerel has a social and political dimension over and above its direct economic importance as a productive industry. (b) Sustainable and efficient production. Development of a profitable and sustainable national production and distribution chain for horse mackerel is an objective which includes the sustainable use of the resource, efficient fishing and post-harvest practices, employment and economic development. On one hand consumers, particularly urban middle income consumers, demand a quality product at affordable prices, while producers and importers seek profits. The development objective also has a regional dimension, given the economic

5 A Lei sobre as Águas Interiores, Mar Territorial, Zona Contígua e Zona Económica Exclusiva; A Lei sobre o Investimento Privado e o Quadro de Incentivos ao Investimento; A Lei dos Recursos Biológicos Aquáticos e seus Regulamentos (6-A/04 de 8 Outubro 2004). Note: A law is approved by the National Assembly, while Presidential and Ministerial Decrees are subsidiary instruments consistent with the law.

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Support for the devising of the management plan for the Horse Mackerel fishery Angola and Namibia Final Technical Report - Preparation of the Horse Mackerel (T. trecae) Management Plan for Angola (AFA159R03CEN) importance of the industry, particularly in two southern provinces. Specifically, the PND6 calls for industrial development of the Benguela/Lobito area for fisheries and development of the port facilities in Namibe to serve both southern Angola and northern Namibia, with a particular emphasis on Tombwa as a fishing and fish processing centre.

A management plan for the fishery must consequently take into account not only the sustainable use of the resource but must also consider the import regime for horse mackerel and the balance between competing objectives.

3.5 International policy dimensions Angola recognises the transboundary nature of the small pelagics fisheries for horse mackerel and other species. Angola has ratified the Southern African Development Community (SADC) Protocol on Fisheries and signed the BCC agreement, both of which specify cooperation in the management of transboundary fisheries. Angola has already prepared a draft management plan for sardinella in cooperation with Gulf of Guinea countries. Angola imports significant quantities of horse mackerel from Namibia opening opportunities for stabilizing markets for both producers and consumers through trade agreements. Opportunities for closer cooperation on enforcement, for marine environmental conservation, biodiversity conservation and management of marine mammals have also been identified in a range of reports and project proposals, including the BCC Strategic Action Plan currently under review. In July 2013, the Namibian Minister for Fisheries visited Angola and signed a protocol on fisheries cooperation with the Minister’s Angolan counterpart.

The following analytical sections (Section 4. The State of the horse mackerel fishery and Section 5. Management measures, rationale and outcomes) are based on the information made available to the consultants at the time of the study.

The information and data sets are acknowledged to be incomplete and should be updated and verified by any subsequent analyses. In so far as possible the information used has been cross-checked and the consultants acknowledge that certain inconsistencies could not be resolved.

Where the statements reflect the informed expert opinion of the consultants, this is noted in the text.

6 Plano Nacional de Desenvolvimento de Médio Prazo (2013-2017)

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4 STATE OF THE HORSE MACKEREL FISHERY IN ANGOLA 4.1 State of the horse mackerel resources The fishery comprises two species of Trachurus: Cunene horse mackerel (T. trecae) and Cape horse mackerel (T. capensis). The project Inception Report specifies T. trecae as the focus of the management plan. The T. capensis resource in Angolan waters accounts for approximately 7-8 % of the total stock and is not the primary focus of the management efforts. T. capensis is of considerable economic importance to Namibia and less so for Angola where the biomass of that species varies considerably and the abundance in Angola waters depend on the position of the Angola Benguela Front (ABF). Currently however the T. trecae stock biomass is estimated to be at an historic low and critical level (Figure 1 and Figure 2). Proportionately a much higher TAC of T. capensis is permitted. For 2013 the combined TAC for horse mackerel was set at 65 000 t of which 50 000 t was designated to Cape horse mackerel and only 15 000 t to Cunene horse mackerel. Supplementary background information is provided in Annex I. Future directions FMP project proposal.

T. trecae is distributed along the entire Angolan shelf (Figure 3) with its southern distribution limited by the cold waters of the ABF which lies roughly at the Angola/Namibia border but moves north in the southern winter. T. capensis is largely restricted to the cooler waters of southern Angola with the large majority of the stock in Namibian waters. T. trecae is distributed from shallow coastal waters to the edge of the continental shelf with only a minor part of the biomass in waters deeper than 200 m. Bathymetric features along the narrow shelf in some areas may constrain the movement of stocks of T. trecae.

A number of spawning areas have been identified and, while the species spawns7 throughout the year, the peak spawning period is from June to August. Maturation is believed to be earlier when the stock is low with mean length at maturity ranging from 12 cm at low stock densities to 20 cm at high stock densities. Genetic studies indicate that the T. trecae in Angolan waters is a single stock. The Instituto Nacional de Investigação Pesqueira (INIP) sampling programme8 shows that larger fish (>30 cm) tend to be harvested in the more northern provinces and are also caught close inshore.

In historical terms, the stocks of both species show a decreasing trend (Figure 1 and Figure 2). Although these data suggest that both species of horse mackerel in Angola are at low levels, the actual levels of depletion remain uncertain. Depletion levels are extremely difficult to determine in some species (such as horse mackerel) as recruitment is strongly dependent on environmental variability. Further, in Angola, depletion levels are also dependent on the assumed historical catch, which for Angola is somewhat uncertain. Setting target reference points for rebuilding historically depleted stocks such as for Cunene horse mackerel therefore needs to be determined cautiously and based on the best available information and risk assessments. The strategy in Angola appears therefore to recognise that stock recovery and rebuilding is needed but that the target levels have not been specifically set due to this uncertainty. For example, for T. trecae, stock rebuilding and associated measures in Angola underpin the management of the resource (to the credit of the management of the fishery). The current (2013) biomass estimate in Angola is 137 000 t, while the stock rebuilding target is 430 000 t, the estimated biomass in 19969. There were substantial recruitment failures in 2002-2003 and again in 2007, 2008 and 2010. Overfishing, rather than changing climatic or oceanographic conditions, is considered to be the primary cause of biomass depletion for both species. However the precise effect of fishing on the state of the resource is not well known. The correlation between biomass and catch is weak (r2 = 0.36) so that even if catches were consistently under-reported, additional corroboration on overfishing is desirable (e.g. substantial catches of juveniles in years when recruitment is low).

7 Reports indicate that spawning takes place in waters between 30-40 m; other reports indicate eggs at 50-100 m depth. 8 The numbers of fish sampled was relatively low (in the order of 2 500/year over a 7-year period). INIP has called for an enhanced sampling programme. 9 Biomass estimates and catches were consistently high in this period.

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Figure 1.Total carapau biomass trends 1985-2013 Source: Consultants, based on data from ‘Nansen’surveys’.

Figure 2. Biomass trends in relation to reported catch and TAC Source: Consultants, based on data from ‘Nansen’surveys’.

Angola adheres to an EAF and there are several environmental and biodiversity dimensions of the fishery. The important influence of oceanographic changes is described elsewhere (see Annex I. Future directions FMP project proposal). Some marine mammals and seabirds are likely to be horse mackerel predators and their populations may be influenced by trends in the state of the stocks. The relationship with the other small pelagics fisheries is discussed below (section 5.1).

4.2 Fishing operations Horse mackerel is caught in three fisheries: (a) horse mackerel is targeted in the purse seine fishery, which has both industrial and semi-industrial fleets. The purse seine catches are dominated by two sardinella species (Sardinella aurita and S. maderensis).

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(b) horse mackerel is a bycatch in the demersal trawl fishery and by the artisanal fishery (these catches are taken in part from the purse seine fleet who transfer parts of their catch to smaller boats – Velho, pers Comm.).

In 2002 the mid-water trawl fishery was closed due to concerns over a declining biomass and high levels of effort in this fishery are considered to have contributed to the decline in the stock. Artisanal catches of horse mackerel and associated small pelagics are modest in comparison to the other two fisheries (carapau is less than 4 % of the total estimated artisanal catch). The horse mackerel bycatch in the demersal trawl fishery is significant but information on catch quantity, location and seasonality of the carapau catch is sparse (see below). In the January – August period of 2013 for example, about 70 trawlers licensed to fish for demersal finfish reported landings and a further 25 crustacean trawlers reported landings of shallow and deep-water shrimp and crab. INIP considers that the demersal bycatch accounts for about 20 % of the total horse mackerel catch and clearly needs to be accommodated in any fishery management planning for the species. Based on a preliminary analysis of landings in 2013 (January to August), horse mackerel accounts for about 15 % of the landings of the demersal finfish trawl fleet. Reported landings of bycatch by the crustacean trawlers are negligible.

The purse seine fleet, which INIP estimates accounts for 80 % of the total horse mackerel catch, is distributed along the coast (Figure 3) but concentrated in the southern Benguela and Namibe provinces. The industrial vessels (>20 meters)10 are fitted with brine freezers, while the semi-industrial vessels are generally fitted with Recirculating Sea Water (RSW) tanks. Trips are of relatively short duration and landings are made to dedicated company terminals where the catch is sorted and blast frozen, boxed in cartons and sold as frozen product. Surplus, or unfrozen landings may be salt dried. Available data for 2013 does not show significant differences in average monthly declared landings between the industrial and semi-industrial vessels11.

10 Vessel length is one of several criteria determining its industrial/ semi-industrial status. 11 Transshipments of catches from catcher boats to mother vessels are thought to take place and may also affect estimated catches in the different sectors.

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Figure 3. Distribution of horse mackerel in Angola waters (T. capensis in the south and T. trecae in the northern waters) Source: DNPPR and INIP

4.2.1 Fishing capacity and effort The active industrial purse seine fleet (36 vessels) has an average length and horsepower of 30 m and 584 hp respectively. The active semi-industrial fleet (53 vessels) has an average length and horsepower of 18 m and 376 hp respectively (Table 1) and mainly fishes from Luanda, Benguela and Namibe (Figure 3). However vessels may land at ports other than their base port during the year. Companies own an average of 3 vessels. The fleet numbers have also been reduced in recent years (Figure 4).

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Figure 4. Number of semi and industrial vessels in the purse seine fishery in Angola (per year) Source: Ramos

Information is not available on the hold capacity of some vessels. Year of construction is not an accurate indicator of fleet investment as many vessels have been completely refurbished. Vessels owned or operated by vertically integrated companies are also likely to have a greater fishing (or landings) capacity as trips and landings can be more effectively planned. In summary, a range of supplementary information requires to be compiled and analysed in order to provide a more robust indication of fleet capacity, or the fishing power of the purse seine fleet.

Table 1. Characteristics of the small pelagics purse seine fleet based on available licensing information Number 2013 Average LOA (m) Average HP Average GRT Industrial 36 30 584 172 Semi-industrial 53 18 376 50 Luanda/ Cabinda 39/ 2 Kwanza-Sul 6 Benguela 22 Namibe 21 Source: DNPPRP, Sept. 2013. The distribution refers to the declared base port. However the vessels may move seasonally. The values refer to the vessels in the licence register and may not be fully consistent with other information (The ‘type’ – industrial, or semi-industrial is not recorded for 13 vessels).

The number of fishing days is recorded in both logbooks and in company landings reports (mapa de Controle de Descargas). It is compiled at provincial level but total fishing effort for the entire fleet for all provinces is not readily available at national level. Consequently, a robust indication of total fishing effort or trends in effort is not currently available. However, total purse seine fleet fishing effort could be prepared from available sources of information12 and standardised by applying an assessment of the fishing capacity of the vessels. The existing Vessel Monitoring System (VMS) data for the industrial fleet can also be used to determine fishing days. The semi-industrial vessels are not as yet fitted with VMS.

4.3 Catches of horse mackerel and related small pelagics Horse mackerel accounts for about 20 % of the total reported landings of the small pelagic purse seine fleet and in the order of 15 % of the reported landings of the demersal finfish trawl fleet. The two species are not separated in the catch or

12 Note: Graphs showing fishing catch per unit effort are presented in some reports but the source of this information is not stated.

Project Funded by the European Union pg. 10 A project implemented by COFREPECHE

Support for the devising of the management plan for the Horse Mackerel fishery Angola and Namibia Final Technical Report - Preparation of the Horse Mackerel (T. trecae) Management Plan for Angola (AFA159R03CEN) landings statistics and cannot be readily be distinguished by non-experts. Unless otherwise stated, reported catches are in fact total reported landings for horse mackerel. The reported landings/catches are as follows.

Table 2. Reported catches of horse mackerel (both species) in Angola 1995-2012 Year Catch/ landings Year Catch/ landings 1995 52 503 2004 2 535 1996 137 766 2005 6 502 1997 n/a 2006 15 777 1997 n/a 2007 15 000 1998 43 016 2008 44 395 1999 25 906 2009 15 490 2000 39 895 2010 1 952 2001 47 368 2011 5 080 2002 37 518 2012 10 000 (est) 2003 34 203 Source: various reports, DNPPRP.

Catches by different fleets show considerable variability during the year as shown by the reported landings in Benguela province in 2012 (Figure 5). The consultants are not clear if the trawl bycatch of horse mackerel is fully accounted for in the total reported catch/landings. Based on a limited sample for 2013, the consultants estimate that the demersal finfish trawl bycatch of horse mackerel is estimated to be in the order of 4 000 t while previous unreferenced reports place it at 2 400 t. Some horse mackerel is reportedly caught by the trawlers targeting crustaceans (deep and shallow-water shrimp, crab and lobster). However, most if not all finfish caught by the crustacean trawlers appears to be discarded as finfish and is not reported13 in the landings.

Figure 5. Reported landings of small pelagics in Benguela province 2012 from the purse seine fleet Source: DP Benguela. See “Annex I. Future directions FMP project proposal’’ for values

While the artisanal catch of small pelagics is modest, in 2012, the catch of horse mackerel was 3.5 % of the total artisanal catch and almost 7 % of the reported landings in Luanda province. In 2012 the artisanal fisheries reported14 landings of

13 A small quantity (20 kg) was reported by one shrimp trawler. The information used was the ‘Control de Descargas’ compiled by DNPPRP for the first 2 quarters of 2013. Similar compiled information is not available for previous years. 14 Instituto de Desenvolvimento da Pesca Artesanal e da Aquicultura 2013. Controlo Estatístico das Capturas e Esforço de Pesca Artesanal Marítima e Continental. Ano 2012. Relatório Técnico nº17.

Project Funded by the European Union pg. 11 A project implemented by COFREPECHE

Support for the devising of the management plan for the Horse Mackerel fishery Angola and Namibia Final Technical Report - Preparation of the Horse Mackerel (T. trecae) Management Plan for Angola (AFA159R03CEN) over 2 000 t of carapau, of which only 100 t was landed in Namibe province, suggesting that as much as 2 000 t of T. trecae were caught by the artisanal fleet in 2012 (assuming that little T. capensis is caught north of Namibe province). The artisanal catch of horse mackerel (assumed predominantly T. trecae) however is clearly an important component for local fishers and is sold on the streets for example, around Luanda.

The consultants understand that there may be additional catches, some of which are unreported. These include horse mackerel which is transshipped or offloaded to small artisanal vessels and landed at unregulated landing sites where no records of landings are kept. For example, in Benguela the purse seiner skippers are ‘paid’ in fish and this fish is often not landed at the landing site of the vessel owner, but offloaded elsewhere for separate sale. Catches by unregulated gears such as traps (large fixed nets known as ‘armacão’) are considered to be substantial in some areas. There is also some evidence of discarding, for example, when the catch exceeds the freezing capacity of the fish plants, when local markets are oversupplied and when the capacity to dry fish has been reached. However, the consultants believe that the discards are more likely to be of the lower value sardinella than of carapau.

4.4 The fishery economy and the horse mackerel import regime There is little information available on the economic state of the fishery. The consultants noted that several companies were noted to be making investments and anecdotal evidence suggests that the fishery is still profitable. Approximately 50 companies operate purse seiners and the majority of the companies also have processing facilities. The processing facilities normally consist of private jetties with pumps to bring the fish from the RSW tanks to a washing, sorting and weighing floor. The fish generally is blast frozen in 10 kg plastic trays and strapped in 20 kg cartons with a plastic liner. This is the main product produced. The landings which are surplus to the freezing capability may be salt dried and some operators fish specifically for salt drying. However, the main consumer demand is for the frozen product and the salt dried product is considered less profitable, or marginally profitable. Some fish meal is produced mainly from sardinella and exports are reported to be in the order of 2 000 t in the first semester of 2013.

The consultants understand that the vertically integrated companies, some of which operate cold stores in Luanda and key markets, may be more profitable. There is no empirical information available on the structure of costs for the catching, processing or distribution and marketing operations. Employment figures for the small pelagics fishery are not available.

The vessel operators benefit from a fuel subsidy and industry sources consider that fuel represents 30-40 % of operating costs. The consultants understand that the freezing capacity of the plants may sometimes be insufficient to handle the landings at times of high production and it is understood that there is a growing shortfall in freezing capacity, particularly in Namibe province. Operators are constrained by unreliable mains electricity forcing investment in generators. For example, the daily cost of operating generators for a large operator in Baia Farta is about USD 4 000 per day. Other constraints cited by the industry include the price of fuel and periodic shortages of raw material (sardine and carapau). There is no national fishing industry association, though provincial industry associations exist.

Marketing and the horse mackerel import regime Available studies do not describe the carapau distribution and marketing system in detail. The consultants understand that post-harvest losses are known to occur but these have not been assessed. Producers and importers supply directly to the major institutional clients. Wholesalers distribute large amounts to women traders who break the 20 kg cartons into lots for sale in markets and small restaurants. Poor storage and marketing facilities and erratic electric power constrain the distribution network in the interior of the country (as opposed to the coastal region), while the lower purchasing power in the rural interior means a relatively higher demand for sardinella in the interior. Comprehensive information on prices and margins is not available. However the Instituto nacional de Pesca Artisanal e da aquacultura (IPA) does collect price information by species and fish is understood to be part of the food component of the Consumer Price Index (CPI), suggesting that some price information may be available through the National Statistics Institute and Ministry of Commerce.

Project Funded by the European Union pg. 12 A project implemented by COFREPECHE

The shortfall in carapau supply from domestic production has led to a special import regime. The regime has three related objectives: (i) to increase supplies for consumers; (ii) to allow the carapau producing companies to maintain cash flow during the carapau closed season (4-6 months); and (iii) to maintain price stability. The regime has two components set out in an annual presidential Decree15: (i) an exemption from import duties on carapau; and (ii) an import quota divided among both carapau producers and other importers. The criteria for selection of authorised importers include a presence in the fisheries sector and/or possession of cold storage facilities and import and distribution facilities.

Approximately 28 000 t of horse mackerel involving 68 imports by approximately 50 companies took place during the first semester of 2013. Most of the imports came from Namibia, Mauritania and South Africa, in that order, with minor imports (<100 t each) from New Zealand, Chile, China, Spain and Portugal. The annual import duty-exempt quota has been set at 90 000 t for several years. According to importers, there is a distinct segmentation in the market. The Angolan Cunene horse mackerel is the preferred product, followed by the Mauritanian and South African products. Size is a major factor in demand and price determination and the smaller Namibian horse mackerel is essentially a different product. Companies maintain that the imports have no, or marginal effect on prices of locally caught horse mackerel, partly because the difficulty in sourcing quantities of the larger fish. Imports have been considerably below the quota each year.

15 Decreto Presidencial 2/13 of 3 January 2013. Similar decrees were issued in previous years.

Project Funded by the European Union pg. 13 A project implemented by COFREPECHE

5 MANAGEMENT MEASURES, RATIONALE AND OUTCOMES 5.1 Defining the fishery and management unit The project Terms of Reference specify the preparation of a management plan for horse mackerel and more specifically for the Cunene horse mackerel. However the Cunene and Cape horse mackerels are indistinguishable for operational purposes. Sardinella is the main catch of the purse seine fleet which lands an estimated 80 % of the horse mackerel and the main management measures apply to this fleet and the activities of the fleet owners and operators. For these reasons, the national workshop on the preparation of the Horse Mackerel Management Plan recommended that the management plan be prepared for the small pelagic fishery but with particular emphasis on horse mackerel and in particular on the Cunene horse mackerel.

The key management unit is thus the small pelagics fishery and in particular the purse seine fleet. The catch of carapau by the demersal trawlers is fundamentally a bycatch management component of the demersal trawl fishery management16. Three groups of management measures can be considered:

(a) conservation measures which relate directly to sustainability of the fish resources and the ecosystem; (b) technical measures which relate to the fishing operations, and (c) structural measures which set out and apply allocation criteria and social and economic rules and incentives.

A crucial part of the following analysis involves an examination of: (i) the rationale for the different management measures; (ii) the functioning of the management measures; and (iii) the incentives, or disincentives created by the measures and their application. An understanding of the incentive structure is essential for effective management as a rule, or measure, intended to achieve a certain purpose may in fact undermine it. For example, a rule that prohibits discards may mean that discards are not reported and the associated fishing mortality not counted in preparing management advice.

5.2 Management framework and outcome of current management measures The basic management framework is adequate. The main fisheries law contains most, if not all, the necessary provisions. The annual regulation (for example, Decreto Presidencial 4/13 of 3 Janiero 2013 ‘Medidas de Gestão das Pescarias para o ano de 2013’) contains the necessary provisions and authorisations. The institutional structure is appropriate and includes INIP (scientific advice on the resources); the Direcçãoao Nacional das Pescas e Protecção dos Recursos Pesqueiros (DNPPRP) - licencing and administrative controls); the Serviço Nacional de Fiscalização (SNF or ‘MCS office’) and several other supporting offices and institutions (dealing with legal issues, planning, infrastructure, artisanal fisheries, finance and planning and industry support). The provisions for consultation and dialogue are institutionalised. The plans (Plano de Ordenamento das Pescas) contain most, if not all, the elements required.

The Cunene horse mackerel biomass in particular has declined and the effect of fishing on the biomass is not known17.The consultants are of the view that there are several reasons for this, all of which need consideration in the development of an effective management regime: (a) the Ministry is a relatively new institution (less than a year old) and in the opinion of the consultants, the institutional memory of the previous Ministry of fisheries was partly lost in the amalgamation into the agriculture

16 Noting that the bycatch in the demersal fishery is likely to be only horse mackerel and not sardinella. 17 “… nao se conhece o real efeito da pesca sobre a abundancia do recurso” the translation is as follows “one do not know the real effect of the fisheries on the resource (from a keynote presentation to National Workshop on Preparation of a Management Plan for the Horse mackerel fishery, Luanda, Sept. 2013).

Project Funded by the European Union pg. 14 A project implemented by COFREPECHE

Ministry and its subsequent reconstitution. This loss included not only the loss of some of the physical archives and data, but also the loss of tested procedures and processes, and mechanisms for effective integration, cooperation and communication among units. Consequently many of the procedures are being rebuilt and staff trained in their application; (b) although there appears to have extensive knowledge of the horse mackerel resources and the related fisheries exploiting them, there remains many gaps in the knowledge and also considerable uncertainty around the variability of these stocks and the reasons for their current state of stock decline; (c) the consultants believe, that while a full suite of management measures exist, many of the management measures are not effectively implemented and in some cases generate perverse incentives. The consultants acknowledge that the Angolan authorities may not agree with these conclusions.

The following sections examine each of the components of the management regime with a view to identifying constraints and providing solutions. The main management measures are summarised in the following table.

Table 3. Main management measures applicable to the horse mackerel fishery Management measure Description 2013 Rationale TAC T. trecae (tonnes) 15 000 Stock rebuilding TAC T. capensis (tonnes) 40 000 Closed season carapau May-Aug Peak spawning period (T. trecae) Closed season demersal trawl Jul-Sep Peak spawning period for demersals Vessel capacity limit 90 seiners Precautionary limit Seine minimum mesh size 25-30 mm Closed areas Bays, estuaries, ports, Protection of nursery areas/artisanal inside 2 miles fisheries Company/ vessel quota % of TAC Uncertain By catch limit demersal trawlers Up to 5 % pelagic species May not be consistent with catch Prohibition on discards All fisheries Appropriate but difficult to enforce Prohibition on fish meal From small pelagics Authorized when the fish is damaged manufacture Prohibition on pelagic trawls Since 2004 Conservation/ stock rebuilding Minimum sizes 18 mm See DE 109/05 Fishing rights Complex of rights See Lei 6-A/04 Art 39 Source: Decreto Presidencial 4/13

5.3 Resource conservation and rebuilding measures 5.3.1 Setting the TAC The TAC is recommended by INIP and discussed and adopted by the technical and consultative councils which provide the technical and stakeholder advice to the Minister. The TAC is one of a number of management measures signed into law by the President (see for example DP 4/13).

Economic and social advice. No comprehensive economic or social studies are currently available. However the consultative processes take account of the social and economic concerns of the Ministry, such as poverty reduction and food security. Ideally, the following baseline economic information is required both to set targets, link to policy objectives and as an input to the determination of the TAC and other management measures:

Project Funded by the European Union pg. 15 A project implemented by COFREPECHE

(a) Fleet and processor economics: Cost and earnings information on the purse seine fleet and the associated processing industry; estimates of capital value and returns on capital, employment, profits and fiscal contributions (taxes, licenses). Such estimates could be prepared by the industry and subject to verification by independent institutions (e.g. university business studies department). (b) Analysis of the likely effects of different management measures on profitability, employment and market prices of carapau.

Preparation of scientific biological advice. The second major input is the scientific advice on the state of the resources and the projected impact of management measures on the state of the resources. The target variable is the biomass of Cunene horse mackerel and the objective is to increase the biomass from the current biomass of 137 000 t to 500 000 t. The TAC recommendation also needs to be considered in association with another major conservation measure – a closed season for T. trecae for 4-6 months in the year, designed primarily to reduce fishing mortality on the spawning biomass during the main spawning season i.e. the rationale for closed seasons is to reduce the fishing pressure on horse mackerel in particular T. trecae at peak spawning (Velho and Barradas pers. comm.).

A surplus production model is used to project the effects of different TACs. There are at least four key inputs to the model:

(a) Survey estimate(s) of the biomass, undertaken by the research cruises; (b) Size composition of the fish stock based on sampling during the cruises and of the commercial landings, providing information on juvenile and adult numbers; (c) Fish growth rate; (d) Catch information providing fishing mortality18.

INIP acknowledges that the modelling and the information required to run the model can be improved. The research Cruises are predominantly undertaken in winter between July and August (with the exception of two surveys) and cover the tree regions (north, central and south). Both of these factors undermine any direct comparison of inter-annual total biomass estimates. The confidence limits for some biomass estimates are also relatively wide. The size composition of the T. trecae sampled during the cruises (in waters from 20-500 m depth) appears substantially different from the size composition of fish sampled from the commercial purse seine catches suggesting differences between the biomass surveyed and that fished. In the opinion of the consultants several approaches to improving the biomass estimates could be considered:

(a) complementing the acoustic/trawl cruises with ‘research fishing’ by a sample of purse seiners (ideally at the same time and region as the research cruises); (b) examining the profile of artisanal landings of carapau; (c) examining the profile of the demersal trawl bycatch of carapau; The following section examines the quality and coverage of the catch information and further explores some of these approaches. It should be noted that section 5.3.2 is based on the limited information made available to the consultants.

5.3.2 Catch and catch reporting Purse seine catches

18 Natural mortality is assumed to be constant. Although this may be questionable given the somewhat volatile oceanographic conditions, there are no demonstrated relationships between biomass and oceanographic conditions.

Project Funded by the European Union pg. 16 A project implemented by COFREPECHE

Catches are recorded in logbooks on board by the vessel operators and submitted to the local fisheries office (Direcção Provincial das Pescas). The logbooks contain catch and effort information, recording catch by species and by set. On- board inspectors) on industrial vessels also complete catch reports19. Companies submit landings declarations (Control de Descargas) which include landings by vessel and by species and effort information (trip duration in days). Inspectors are understood to check landings records against catch records.

The logbook information does not appear to be consolidated and adequately analysed. The landings information is compiled into quarterly reports at a provincial reporting level. The landings records are sent to DNPPRP (Luanda) for compilation, which involves duplication of effort. The compilation is generally done on Excel spread sheets, (recognising that the data base system is outdated and in need of improvement or replacement – Velho pers comm.). The structure of the spread sheets differs from month to month in the DNPPRP records. This complicates consolidation into a single national landings database. It is understood that there may be some cross-checking between the information collected by the inspectors and the information submitted by the companies. However, that the entire system of collecting catch/ landings information, data entry, compilation, analysis and data transmission is dispersed, involves some parallel data sets leading to substantial inconsistencies and data verification difficult. In addition, some companies do not submit catch/ landings reports regularly. A 2010 report indicates that 51 % of industrial and semi-industrial companies submit catch reports intermittently (‘com muito irregularidade’) and 28 % of the fleet make no report. A check on the reporting of vessels apparently licensed in the first semester of 2013 indicates that landings information was logged for only about 50 % of the vessels. The following table provides a summary of recorded purse seine fleet catches in the January-July period of 2013 based on the information provided to the consultants by DNPPRP. It is acknowledged that this information may be incomplete and cannot be used to extrapolate the annual catches. However, it provides an indication of trends. Sardinella comprises about 73 % of the catch, carapau 19 % and the remaining 10 % is largely composed of jack mackerel and Sciaenidae (cavala and calafate). Carapau accounts for only about 3 % of the landings of the industrial seiners (i.e. based on the information provided), but accounts for about 22 % of the semi-industrial landings. However it is cautioned that the January-July 2013 data may not be representative of the entire fishing year. Nevertheless, this suggests that the fleets have different fishing targets and patterns and that management measures may have different effects on each fleet. The graphics (Figure 6) present the catch of carapau and sardinha by province and month and suggest a pattern of fishing activities which would benefit from further analysis. Note that recorded landings by month for an entire year (2012) were only made available for Benguela Province and for all provinces only for the months January to July 2013.

Table 4. Reported purse seine landings January-July, 2013 INDUSTRIAL Jan Feb Mar Apr May Jun Jul Total carapau (tonnes) 14 21 32 - 7 - 46 Imputed catch per vessel (tonnes car./month) 7 5 16 - 1 - 23 Total sardinha (tonnes) 773 437 325 631 464 359 536 Imputed catch per vessel (tonnes sard/month) 110 146 163 158 46 72 134 SEMI INDUSTRIAL Total carapau (tonnes) 941 721 218 189 216 340 1 105 Imputed catch per vessel (tonnes car./month) 52 34 18 21 22 23 53 Total sardinha (tonnes) 1 298 3 868 1 396 1 082 1 429 794 877 Imputed catch per vessel (tonnes sard/month) 76 184 100 90 143 61 49 Source: Compiled and extracted from DNPPRP catch information (data should be treated with caution and checked with industry sources). The imputed catch per vessel per month is the average catch in the sample. Note that not all records had been inputted to the data sets, particularly for July.

19 No sample of these catch reports was sighted or compared to logbooks. The semi-industrial vessels do not have on-board inspectors.

Project Funded by the European Union pg. 17 A project implemented by COFREPECHE

Figure 6. Carapau and sardinha landings by month and province Jan-July 2013 Source: Consultants, based on data from Ministry of Fisheries

Table 5. Reported landings of carapau and sardinha Jan-Jul 2013 Landings Jan-Jul 2013 Carapau Sardinha Total Industrial seiners (tonnes) 120 3 525 3 761 % industrial landings 3 % 94 % % small pelagics landings 18 % Semi-industrial seiners (tonnes) 3 730 10 744 16 605 % semi-industrial landings 22 % 65 % % small pelagics landings 82 % Total (tonnes) 3 850 14 269 20 366 Source: DNPPRP. Note: Based on the DNPPRP landings data for June 2013, less than half the vessels licensed fleet report landings and the above values should be treated with due caution.

It is fundamental that the catch information is collected, compiled and analysed in a more effective and timely manner, incorporating the necessary cross-checks and verification procedures. The landings reports should cover at least 90 % of the vessels including vessels which are licensed but have not operated (see also the section on compliance below). Ideally this would be in a relational database with standardised coding of species, landing ports, gears and other common data fields. This is a major undertaking which may take over a year to complete and would require investment in staff training, IT and communications support. It could be initiated with software such as Access and as modules develop and become fully functional be moved to a customised database system. It is suggested that this process be gradual allowing staff to fully understand the system, allowing development and resolution of problems at central level and in one province before commissioning expansion to all provinces. Design of an integrated statistical system requires clarity on the ‘ownership’ and responsibility for different data sets, rules on data access and on authorisation to change or modify data. It is suggested that INIP take responsibility for compilation and analysis of the logbook information as this information is of importance for preparation of the scientific advice, while it is not of direct use to DNPPRP. The interfaces between the DNPPRP, INIP and Monitoring Control and Surveillance (MCS) data sets and collection, compilation and transmission of data from provinces to the centre would require careful consideration.

Demersal trawl bycatch The observer or inspector reports from the finfish trawlers need to be analysed and the inspectors interviewed to more accurately determine the bycatch of carapau and whether there are any discards. The quantities by fishing area, depth and time of year need to be established in the event that spatial or temporal controls are considered necessary. Available information (see following table) indicates that the bycatch of carapau is in the order of 14 %, or up to 10 % over the 5 % limit demersal trawl catches for all pelagic species as specified in the law. While discards are prohibited by law, carapau is a relatively low value fish compared to the other catch components (such as Sparidae, Sciaenidae) so there may be an incentive to highgrade. The following table indicates that about 96 % of the demersal fleet landings are made in Luanda

Project Funded by the European Union pg. 18 A project implemented by COFREPECHE

Support for the devising of the management plan for the Horse Mackerel fishery Angola and Namibia Final Technical Report - Preparation of the Horse Mackerel (T. trecae) Management Plan for Angola (AFA159R03CEN) and that the month of May has the highest proportion of carapau (20 %), or almost 60 % of the total carapau landings, suggesting that particular scrutiny of the landings in this period may be of interest.

Table 6. Reported bycatch of carapau by the demersal trawl fleet, Jan-July 2013 Jan Feb Mar Apr May Jun total Luanda (96%) 230 130 98 341 1,480 123 2,403 Total carapau (tonnes) 230 228 99 343 1,486 123 2,510 Total landings (tonnes) 2 256 1 251 2 369 3 219 7 362 984 17 470 Carapau % total 10 % 18 % 4 % 11 % 20 % 13 % 14.4 % % of total carapau by month 9 % 9 % 4 % 14 % 59 % 5 % 100 % Source: DNPPRP. Note: Only first 6 months available. Landings outside Luanda were less than 4%. It should be noted that landings for less than half the vessels licensed were recorded in the database in the month of June and as such the summary values in the table should be treated with considerable caution.

In the opinion of the consultants, the logbooks, observer and inspector reports from the crustacean trawlers need to be analysed and the inspectors interviewed to determine if there is any significant bycatch of carapau. Available reports indicate substantial discarding probably occurs as no finfish bycatch appears in the recorded landings for January-July 2013. Ideally, estimates of discards by species or species group should be compiled and the areas, depths and seasons of any carapau bycatch identified.

The artisanal fishery, other fishing gears and unrecorded catches About 2 000 tonnes of carapau is harvested in the artisanal fishery according to the IPA Artfish statistics for 2012. Carapau is about 3.5 % of the estimated artisanal landings, but can range as high as 7 % in Luanda province. Namibe province accounts for only about 5 % of the carapau catch, suggesting that the majority of the total artisanal carapau catch is T. trecae. Artisanal catches occur throughout the year and the highest catches (over 600 tonnes) occurred during the closed season in Luanda province, suggesting either that there may be a directed artisanal fishery for carapau, or the artisanal landing statistics may include carapau offloaded from seiners to artisanal vessels.

The offloading of seiner catches to artisanal vessels is a known cause of under-reporting. The practice is particularly common in Benguela, where vessel skippers are paid in fish which is landed at landing sites which do not have a presence of inspectors or IPA agents and these landings remain largely unrecorded. Estimates of the scale of these unrecorded landings are not available. Large floating, or anchored fish traps, known as ‘armação’, are also known to catch substantial quantities of small pelagics (estimated at about 3 % of the catch in Benguela province). These gears (armação) are not specified in the legislation and the administration currently has little power to regulate their operation.

5.4 Capacity and effort control measures There is a limit of 90 purse seiners for 2013, up to 84 of which can be <250 GRT and <120 m3 hold capacity and up to 6 of which can by over 250 GRT but under 800 GRT with a hold capacity equivalent to 120 m3. In 2012 a total of 69 vessels were licensed and in the first semester of 2012 and over 100 seiners appear20 to be licenced in the same period of 2013 (see footnote 20). The vessels are owned or operated by about 50 companies, including 19 industrial operators with fleets ranging from 1-6 vessels.

In the opinion of the consultants the limit on vessel numbers has no apparent effect at present and can be regarded as a precautionary capacity limit. However, in so far as the catching capacity exceeds the processing capacity at times, a means of managing this capacity, or more correctly, the fishing effort, need to be discussed with industry. For example, in many fisheries where this problem exists, giving rise to discards, loss of product quality and un-necessary costs, the vessels operate in rotation to ensure that deliveries to the processing plants match the freezing or salt drying capacity and

20 The value of 100 vessels refers to the number of purse seiners submitting catch reports in the 1st semester.

Project Funded by the European Union pg. 19 A project implemented by COFREPECHE

Support for the devising of the management plan for the Horse Mackerel fishery Angola and Namibia Final Technical Report - Preparation of the Horse Mackerel (T. trecae) Management Plan for Angola (AFA159R03CEN) cycles. Ideally, formal arrangements should be established by industry to match processing capacity with catches. Even if no formal arrangements exist, improved communications, such as timely web-based information on catches provided while vessels are still at sea and matching information on processing capacity by freezing cycle would improve efficiency and reduce loss of fish quality by helping to match catches with handling and processing capacity.

Table 7. Numbers of small pelagic purse seine vessels licensed or operating Limit 2013* 2013 (1st sem.) 2012 (1st sem.) 2011 (1st sem.) 2010 Industrial 6 (see note) 35 27 Semi-industrial 84 (see note) 70 65 Total 90 ** 69 49 94 Source: DNPPRP various reports. Notes: Values subject to verification. Note that the issue of a license does not necessarily mean the vessel operated. * The limits do not necessarily correspond with the definitions of industrial and semi-industrial. ** Values for 2013 refer to the list of semi-industrial vessels in the DNPPRP landings database.

The consultants are of the opinion that as a priority action the vessel database urgently requires the combined attention of DNPPRP and the MCS office (SNF) for several reasons:

(a) A consolidated, complete, updated and verified vessel data base is fundamental for issue of licenses, for catch/landings records, for enforcement functions, for vessel safety, crewing, communications and a range of other activities and controls; (b) DNPPRP which issues the licenses and the MCS office (SNF) have separate vessel registers which need to be consolidated and operationally identical; (c) The vessel description forms accompanying the license applications are often incomplete so that information on vessel characteristics (e.g. hold capacity, horsepower, radio call sign) may often be incomplete; (d) The names of vessels and names of vessel owners or operators are often written in different ways in different records, or data sets, which undermines efforts to consolidate or compare landings, transshipment or other records; (e) One office needs to have responsibility for the vessel register and for physical verification of the vessel characteristics, including checking with the maritime authorities on vessel safety, insurance, qualifications of masters and other requirements (noting that DNPPRP Fiscalização is the authority that enforces the application of the management measures and that there are capacity challenges due to limited personnel resources).

5.5 Harvest control measures The two main measures are (i) output control through TAC and individual quotas and (ii) closed season. Other measures include:

(a) a prohibition on pelagic trawls since 2002; (b) the 5 % limit on pelagic species in the demersal trawl fishery; (c) inshore closed areas to protect the artisanal fisheries, port areas and ecologically sensitive areas such as estuaries; (d) a 25-30 mm minimum seine mesh size; (e) a prohibition on beach seines; and (f) a prohibition on unauthorised transshipment.

Project Funded by the European Union pg. 20 A project implemented by COFREPECHE

Quotas Quotas are issued by vessel to rights holders. The quota is essentially a fraction of the TAC and criteria for allocation are specified in the law. It is suggested that quota be allocated by company rather than by vessel, allowing the company the flexibility to allocate among its fleet. This would also reduce un-necessary administrative work in reallocating quota among vessels in the same company.

Table 8. Total allowable catch and closed seasons for carapau 2010-2013 Year TAC TAC TAC Closed season* for T. trecae T. capensis both species T. trecae 2010 0 All year 2011 15 000* 50 000 50 000 6 months (April – September) 2012 15 000* 50 000 65 000 6 months 2013 15 000 40 000 55 000 4 months (May – August) Source: DNPPRP. * Applies to all fisheries. * As per DP 316/11 (may have been subsequently revised)

Closed season The consultants understand that T. trecae reproduces throughout the year with a peak in the May-August period. There is no demonstrated relationship between the closed season measure and recruitment or change in biomass.

While the measure is a useful precautionary step, its application appears difficult as carapau is caught in close association with the sardinella schools. There is a rule21 that vessels must move fishing grounds if encountering high proportions of carapau. However the semi-industrial fleet does not carry on-board inspectors and this rule may be difficult to enforce. Secondly, the rule prohibiting discards may be inconsistent with the rule prohibiting catches of T. trecae during the closed season. In southern Namibe province, where it is impossible to distinguish between the two species, the closed season measure has questionable application and may only have a practical application north of Ponto Albina. Further, small pelagic vessels are permitted to catch Cape horse mackerel for which there is no on-board separation from Cunene horse mackerel. This in effect renders the closed season on targeting of T. trecae ineffective (i.e. a restriction on all carapau- directed effort would be needed for effective impact).

It is not clear if fishing during peak spawning is a major problem. The measure may relate to a concern that higher aggregations during this time increase the catchability of the species and hence bycatch rates are higher. Nevertheless several approaches to reducing T. trecae mortality during peak spawning can be considered:

(a) Improved identification of spawning areas in ‘real time’. This could be done through directed fishing where INIP has an agreement with a number of seiners to fish ‘transects’ based on bathymetry, salinity, Sea Surface Temperature (SST) or other parameter to inform the fleet on areas of spawning concentration and if necessary prohibit fishing in such areas. The spawning condition of the fish may not be similar along the entire coast and a spatial dimension based on more information on spawning condition in different areas could be considered (such as egg and larval surveys to identify the spatial and temporal distributions and recruitment patterns – Velho pers. comm.). (b) Spatial management by the fleet operators by sharing ‘real time’ information on concentrations of carapau during the spawning season in order to reduce fishing effort in such areas. (c) Use of VMS. The percentage of carapau in the closed season catch could be analysed by fishing area using the VMS information, possibly leading to closures of areas with high proportions. (d) Changing incentives. The fishing operators (owners and vessel skippers) need to have clear incentives to avoid carapau catches. Setting a special ‘global’ T. trecae TAC for the closed season. When this TAC is reached the

21 The legislation has not been sighted.

Project Funded by the European Union pg. 21 A project implemented by COFREPECHE

entire purse seine fishery closes. This creates an incentive for all operators to cooperate to reduce T. trecae catches. (e) Incentives – crew payments. If skipper/crew payments are based on catches, then a dialogue with industry (including crew/skipper representatives) to explore how changing the payment system could reduce T. trecae catches during spawning may be of value and could draw on traditional/industry knowledge of fish movements. Secondly, the traditional Benguela system of skipper payments in fish undermines the catch reporting system and needs study. It is suggested either the system be abolished, or regulated. Skippers could be required to make landings reports and buyers or receivers similarly required to declare landings.

Demersal trawlers and the 5 % pelagic bycatch limit As already noted, the trawlers appear to substantially exceed the 5 % bycatch limit (noting that this bycatch applies to all small pelagic species and not just horse mackerel). Either the limit should be raised or the measures taken to avoid the bycatch. The latter requires an analysis of the bycatch by area, depth, month and gear, and target species and the deployment of scientific observers to collect appropriate information on bycatch.

Artisanal measures Areas and seasons with relatively high catches of T. trecae require further study. Additional information is required on the catches by gears such as armação to determine appropriate measures if required.

5.6 Compliance The consultants are of the view that there is considerable non-compliance in the fishery. The perception of the consultants is that the fishing industry either misreports, under-reports or simply fails to report catch and effort. Compliance with reporting requirements does not appear adequately enforced making it difficult to apply any rules on capacity.

As indicated in previous sections, there is ample evidence of violations of the closed season by all fleets and of bycatch rules. The SNF (MCS office) indicates that the most common violations by the purse seine fleet are catches of undersized carapau (<18 cm), zone infractions and closed season. Incidents of unauthorised transshipment are common, but interference with the VMS is reported to be rare. There is a new state-of-the art VMS although it currently only reports on industrial vessels.

Basically the fisheries authorities can considerably improve the implementation of the management measures. The consultants are of the view that some of these rules are practically unenforceable and need to be revised. The consultants believe that enforcement of other rules, such as on catch reporting require considerable effort by all concerned, not only the MCS office and provincial offices, but as a joint effort by numerous directorates and ‘gabinetes’. There is a balance between coercion and persuasion. Where rules are clearly understood and make sense to the fishers, when rules are applied transparently and equitably, and when the rules are seen to be of benefit to the fishing industry, the rules tend to be respected. Fishers who do not comply come under peer pressure to change their behaviour. This is the basis for co- management and effective cooperation with the industry. In contrast, it is difficult to force compliance through penalties with rules that are poorly or inconsistently applied.

Either the rules must be properly applied or removed. This means the administration must have the capability to apply the rules effectively. The consultants believe that this is currently not the case, as there is a deficit in human resources, knowledge, institutional systems and communication. Any management plan must address these constraints, which apply not only to the small pelagics fisheries.

The following are among the key activities which can be considered in relation to compliance: (a) Catch reporting:

Project Funded by the European Union pg. 22 A project implemented by COFREPECHE

Enforcement of catch reporting rules, in particular the non-issue or suspension of licenses for persistent offenders; Compile and publish (on Ministry web site) in a timely manner the total catches by species, province and gear as a feedback to industry with on-line publication of companies not submitting catch reports; Cross-check samples of logbook catch data with on-board inspector reports, company landings declarations and SNF landings inspections; Cross check VMS (vessel activity) with landings reports; Introduce catch reporting for skippers paid in fish and for unregulated gears (armação).

(b) Analyse compliance performance and improve communications and data exchange: Prepare a single consolidated and verified vessel register (database) and associated registers (such as company register); Analyse the frequency of violations and likely impact on stock rebuilding measures; Correlate VMS (spatial data on fishing effort) with % carapau in catch (from landings data) by area and month and time of month; Assess the deterrent effect of penalties22 in relation to the potential gains from a violation, as the penalties are often seen as a ‘cost of doing business’ by persistent offenders.

(c) New and modified measures and incentives: Review the effectiveness and practical application of all measures and modify if necessary; Remove or suspend un-necessary or unworkable rules; Examine possible conflicts between discards and prohibited catch rules and any other conflicts between rules; Remove any prohibition on landing of T. trecae during the closed season in order to obtain more accurate landings/mortality information and transparently apply penalty charges at a level which does not lead to under-reporting; Consider a global closed season TAC and close the entire fishery when reached; Use the VMS data for effort estimation by zone (fishing area) and to map concentrations of effort or spawning aggregations with a view to spatial management of the fishery; Extend VMS coverage to the semi-industrial fleet (already planned and under implementation); Require processors north of Namibe to sort carapau by size for freezing (if not already done) and use the commercial categories to establish percentage of juveniles.

5.7 Post-harvest and market activities A key objective is to provide small pelagics to consumers at affordable prices so the entire production and distribution chain need to be considered in the FMP. The efficiency of the processing, handling and distribution companies and networks is a key to reducing production costs and product prices. Based on appropriate preparatory studies, a range of activities to improve this efficiency can be considered in three related areas: (i) ports and landing sites; (ii) imports and (iii) information services.

Ports and landing sites (a) Matching catching capacity with processing capacity. This has already been addressed in section 4.3 and requires the sharing of information among processors and fish buyers in the ports with formal or informal arrangements to fully use catches, or to reduce fishing when processing capacity is overloaded. Angola can draw on examples of arrangements in other countries.

22 Kelleher, K. 2002. The costs of monitoring, control and surveillance of fisheries in developing countries. FAO Fisheries Circular. No. 976. Rome, FAO. 2002. 47p.

Project Funded by the European Union pg. 23 A project implemented by COFREPECHE

(b) Electric power supply improvements. Erratic mains power supply is a major constraint to some processors requiring substantial additional investment in generators and high costs of power. The industry could consider a unified approach to lobby for upgrades to the power supply and priority allocation of power while selling any surplus power generated back to the grid. (c) Improvements in the cold chain for frozen fish distribution. Both consumers and industry would benefit from a joint Ministry/industry study of the existing distribution system, its constraints and opportunities for improvement. These improvements could range not only from coordinated trucking to the interior of the country and estimates’ of demand in major towns, but also to credit for small-scale retailers selling in public markets. (d) Waste disposal in harbours. Some attention could be directed to waste disposal from processing plants and landing sites.

The import regime Up to 90 000 tonnes of carapau can be imported duty free. The amount is allocated between fishing companies and other enterprises with cold storage or distribution facilities. In recent years imports have been about 50 % of the quota and as such the quota system appears to be redundant and simply imposes costs on the Ministry and the importers. While there may be a need to verify that prospective importers can effectively undertake their business, the need for company-by- company allocations is questioned. Importers complain of high transaction costs in the importing procedures.

While some importers have grouped together to reduce transaction costs with large lots, more could be done by organising the importers (for example through workshops). If the importers were organised in an association, potentially, they could jointly negotiate lower import prices and lower freight rates and reduce transaction costs. If longer term contracts with suppliers were negotiated, this could help stabilise prices, the wholesale and retail prices and improve the efficiency of the entire distribution network, which currently suffers from erratic supply.

Information and capacity building (a) Market study. A thorough study of the marketing and distribution network is required, preferably in close association with industry and consumer groups. There are no nationwide study of the fish distribution network – the volumes, prices, margins along the production – processing – wholesale – retail chain. There is no comprehensive information on the relative prices of Angolan and imported carapau and the influence of imports on prices (if any) or supply and demand functions (such as price elasticity’s) for carapau and sardinella. No comprehensive price series is available by province or city for products that are important in the consumer food basket. It is understood that fish or carapau may be a component of the CPI and if so, the price data collected would be of value.

(b) Women. Women are key players in the marketing and distribution network. Efforts to organise women fish buyers and sellers or processors into associations could be considered. The associations could help consolidate freight, stabilise supply, improve product quality, help avoid post-harvest losses, arrange credit and cold storage for unsold products.

(c) Private sector actions. Both producers and importers could consider forming a county-wide association (it is understood that provincial associations exist already). The association could develop and promote codes of industry practice, inform any trade agreements and play a more active role in the development of economic and social advice on the management of the fishery.

Project Funded by the European Union pg. 24 A project implemented by COFREPECHE

5.8 Costs of management The costs of the current management system have not been assessed. Ideally the public and private costs of management should be minimised and not exceed 10 %23 of the landed value of the fishery. It should be noted that most, if not all management measures incur costs and the elimination of un-necessary measures can substantially reduce costs. The costs accrue to both the administration and the industry and are financed in various ways – by producers, consumers, or taxpayers. For example, introduction of VMS for the semi-industrial fleet will incur costs both for the industry and SNF and clear benefits or returns from these investments need to be demonstrated. For example, a prohibition on discards incurs costs for the vessel operator (loss of catch), to the administration (MCS costs) and to consumers (loss of supply), while the benefits may be difficult to determine.

Ideally the revenue collected through licenses and other fees should cover a substantial proportion of the research, MCS and administrative costs incurred by the public institutions (Ministry, research institute, and inspection). Where there is a special research fund that receives licence fees and other charges on the industry, the use of these funds may be monitored by the industry which often leads to a more efficient and prioritised use of these revenues.

5.9 Dealing with uncertainty Catch information (apparent fishing mortality) does not explain the variations in T. trecae biomass24. Substantial additional analysis of research cruise data and of improved catch data may provide greater insights. However the oceanographic conditions are highly variable and the influence of oceanographic conditions and fish biomass poorly understood. Efforts to build a greater understanding of the ocean/fish biomass dynamics are required (noting that all INIP stock assessments recognise that reported catches do not reflect absolute fishing mortality. Resource assessments are also supported by environmental reports on the state of the environment that might influence resource dynamics under consideration – Velho pers comm.).

For example, hypotheses could be advanced and tested using both historical data and using new information generated from carefully designed research. In particular, relationships between biomass and El Nino events, SST, salinity need to be tested, initially by review of cruise data biomass by month, depth and size distribution with respect to salinity, temperature and other indicators such as primary productivity of oxygen levels. Additional efforts may need to secure additional oceanographic data, for example through arrangements with petroleum platforms or the industrial fleet, or with the owners of satellite data through BCC. It is noted that the outflow of the Congo river may influence the behaviour of small pelagics populations through altered salinity, turbidity and oxygen levels and that there could be significant future changes in the Congo outflow if the massive Inga 3 hydroelectric project goes ahead.

Rebuilding the fish stocks and controlling effort and fishing capacity would build a more resilient fishery economy and enable operators to adapt to change, while dissemination of the scientific knowledge to the industry will help understand and evaluate the uncertainties (noting that INIP collaborates closely with the fishing industry in this regard).

23 Management costs vary widely among fisheries for a variety of reasons and 10 % should be considered as an upper limit while aiming for costs lower than 5 %. 24 This is common in small pelagic species. However, it does not mean that catch is not the main driver of overall declines in biomass, or that catch does not have to be carefully controlled.

Project Funded by the European Union pg. 25 A project implemented by COFREPECHE

6 FISHERIES MANAGEMENT PLAN The proposed management plan uses the existing framework of policies, laws and institutional arrangements. No basic changes are envisaged as all the legal, administrative and enforcement ‘tools’ are available. Further details are provided in section 7.1. The proposed management plan should be based on three pillars:

(a) Existing policies and plans applied to the fishery; (b) Existing institutional arrangements and management measures and their improvement; (c) Upgrading of human and institutional capacity, including information sharing and cooperation.

Angola has the following key strengths upon which the FMP can be based:

(a) A core structured and functional fisheries management system; (b) This system is supported by a legal and institutional framework that is comparable with fisheries management capability in many countries; (c) The management of fisheries has a supporting research base with well qualified and recognised fisheries scientists and a new research vessel has been commissioned; (d) There is an established MCS structure which includes a modern VMS; (e) Catches and fish landings are monitored (extent and efficiency not fully known); (f) There is an established and generally efficient fisheries administration with a functional licensing system, levy structures and also fish quality control monitoring; (g) There is good infrastructure and staff capacity is professional and generally responsible and motivated; (h) The fishery economy appears healthy, has good economic potential and supports food security.

However, there are several key weaknesses:

(a) The Fisheries Ministry is less than a year old - there has been a loss of institutional memory and in particular a poor information system that has lost continuity with the recent changes; (b) Many of Angola’s fishery resources are heavily exploited and the Cunene horse mackerel biomass has shown declines; (c) Effort in most fisheries sectors remains high and may be difficult to monitor; (d) Management of the large artisanal fishery is challenging; (e) Data management (particularly catch data) needs to be improved and integrated fishery information management system is essential; (f) Fuel subsidies exist – this enhances the current economic viability of the fishery but may lead to overcapacity and reduction of aggregate net economic benefits when the fuel subsidy is removed (a stated medium/ long-term government policy).

The following challenges and threats exist:

Project Funded by the European Union pg. 26 A project implemented by COFREPECHE

(a) Poverty Reduction: There are considerable demands on the Angolan economy to support a growing coastal population that is increasingly dependent on fish as a source of protein; (b) Along with population growth, climate change, exploitation of the marine systems (oil and gas, fishing, coastal degradation) the marine ecosystem is under stress. In particular there is a commitment to implement an EAF – these conflicting issues impose additional pressure on fisheries managers; (c) Environmental variability and climate changes require risk to be incorporated into fisheries management decisions – included in this is, for example, the impacts of the Angola Benguela Frontal Zone (ABFZ) and Benguela Nino events that can have dramatic impacts of fisheries – in particular the small pelagic resources (carapau, sardinella).

6.1 Existing policies and plans The existing national and sector plans form a coherent basis for the development and implementation of an FMP. A working objective for the fishery, based on existing national and sector plans can be as follows:

“An environmentally, economically and socially sustainable fishery supplying consumers at affordable prices and contributing to national and regional economic development through productive and profitable enterprises and responsible fisheries practices.”

The development of the plan should allow for specific targets, reference points and harvest control rules to be established, for example: (a) biological reference points for each species e.g. MSY (biomass, spawning biomass); (b) limit reference points (level at which the stock should not fall below); (c) social (employment, consumption); and (d) economic (cost/benefit of production, price to consumers).

However, to establish and monitor robust and realistic targets, a more comprehensive set of baselines will be required and procedures for monitoring developed (see below). Some targets are identified in the POPES. These should be reviewed, progress towards these targets critically appraised and adjustments made in the forthcoming POPES (under preparation).

6.2 Existing institutional arrangements and their improvement The existing institutional arrangements are broadly adequate. INIP provides the biological advice, DNPPRP provides the arrangements for licensing and rights administration, SNF provides the enforcement capability and the legal and studies/planning offices provide supporting services. The provincial fisheries services provide the presence on the ground and reporting to DNPPRP. However a number of institutional gaps will need to be filled. There is little or no collection and analysis of economic data either on production or consumption. Underpinning the management is the core issues of:

(a) the coverage and quality of the catch and effort reporting system which requires improvement; (b) responsibility for processing and analysis of logbook data also needs to be clarified; (c) cross-checking of key data needs to be systematised; (d) compliance need to be evaluated and improved, otherwise the level of application of the management measures will remain unclear and their impact uncertain.

Project Funded by the European Union pg. 27 A project implemented by COFREPECHE

6.3 Existing management measures The existing management measures are comprehensive and procedures are in place to implement the measures. However, the measures need to be tuned to the changing conditions in the fishery and the problems in the practical application of the measures. These are the first steps in laying the foundation for a comprehensive management plan. The following section uses the existing management measures from DP 4/13 as a template for short-term improvements in the management regime.

Measure Issues Recommendations/ Solutions General Potential conflicts between some measures, e.g. Examine all measures for potential conflicts and minimum sizes and discards. adjust in structuring future measures. Capacity Measurement of fishing capacity needs Standardise measurement of vessel fishing adjusted to improvements such as number and size of capacity; ensure vessel characteristics are resources (Art 1) vessels. current and complete on license application and Registration Numbers use comparative catch and vessel Gross Tonnage characteristics to develop an improved measure Net tonnage of capacity. IMO number Call sign Engine type Engine power Engine type, etc. VMS artisanal In the opinion of the consultants this needs clear Examine use of low cost alternatives using (Art 2.1.) justification because of high costs involved. mobile phones with GPS (rather than satellite). Semi-industrial High priority as a basis for design of spatial The SNF/INIP need to use the information to VMS (Art 2.2) management measures. estimate CPUE by area and link effort with catch composition. Otherwise the costs may not be justified. Observers (Art Terms to be defined by Minister. It is well Some coverage of semi-industrial seiners is 2.3.) defined. required and needs to be discussed with industry. It is planned INIP send some observers this year. Closed season The closed season for T. trecae was cut from 6 Measure is precautionary and should be (Art. 3 (g)) to 4 months and applies to all fisheries along the maintained and clarified. However, peak entire coast. maturity may differ north-south or by spawning The % of T. trecae in the reported catches ground requiring adjustment to the blanket indicates that the closed season measure is not closure (implemented by region in 2013). effectively implemented in the seiner, demersal The patterns of carapau catch by the demersal trawl, or artisanal fisheries. trawlers needs to be established with a view to However, the measure is difficult to apply as area closures. Was provided. T. trecae is effectively a ‘bycatch’ of other The pattern of seiner catches needs to be fisheries during the closed season and it is examined in association with industry to reduce difficult to avoid catches of T. trecae. the % of carapau in the closed season catch (10 %). The reason for high reported artisanal carapau catches in Luanda province needs to be established.

Project Funded by the European Union pg. 28 A project implemented by COFREPECHE

Measure Issues Recommendations/ Solutions Mesh size (Art No apparent issues. Maintain measure. 4(e)) Bycatch Reported carapau catch of the demersal Trawlers need to avoid areas of high carapau (Art 5 and 5(a)) trawlers is 10 % above the permitted 5 % for all bycatch, especially in peak spawning season. pelagic species. Measures need to be revised and strengthened No obligation to freeze carapau in separate based on a thorough analysis of sound observer cartons, making control of landings difficult. reports. The measures need to be very carefully designed or may result in discards or misreporting Biological Samples may be insufficient to provide a Explore the use of commercial size grading sampling (Art. 6) representative picture of the fishery. where used. Interview seiner skippers to collect their knowledge of size distributions. Catch log books Not analysed by Ministry or INIP. INIP should undertake the analysis, if necessary (Art. 7) selectively at first with a sample of industrial and semi-industrial seiners and demersal trawlers. Landings Landings declarations are not received regularly Priority enforcement of the measure. Licenses to declaration (Art. from a significant proportion of the fleet. be suspended for persistent offenders. 7) Declarations (mapa de captura) are made for Effort information to be cross-checked with VMS the first 25 days of each month and the data. remaining days (26-30/31) are reported on the Catches to be allocated by area by integrating report for the subsequent month. This requires with VMS data. Consider an additional simple an adjustment of the Excel spreadsheet entry monthly report sheet by company with made for the previous month. vessel/days fished/total landings. Ideally the ‘mapa de captura’ form should be prepared for a full month, not for 25 days. TAC (Art. 9) The calculation of the TAC quantity/calculation is Make public the scientific advice and not clear. calculations and the rationale for any Because of the mix of the two species in the adjustments made for socio-economic reasons. catches, the separate TACs cannot easily be Improve the catch reporting system at all levels. monitored. Carefully examine the practical value and TAC is understood to be allocated by company application of the TAC and how its functional and vessel. use can be improved, in particular the utility of the company/vessel allocation system. The Ministry needs to assess the value of allocating the TAC by company and vessel. Fishing effort The Article refers to fishing capacity and not to Further analysis of the fishing power of the (Art. 10 (a)) fishing effort. different classes of vessels is required. The rationale for the values (80 smaller and 6 The vessel registry must have all the vessel larger) vessels is unclear as the catch records characteristics included and physically verified indicate that the capacity is not necessarily (e.g. by the Capteneria do Porto). correlated with the vessel size. Review the use of the term ‘esforco de pesca’ in the legislation.

Project Funded by the European Union pg. 29 A project implemented by COFREPECHE

Measure Issues Recommendations/ Solutions Fishing areas No provision for temporary area closures (Lei Art Based on a thorough analysis of fishing activities (Art. 12) 65 (b)). by area and in close consultation with industry consider temporary area closures to protect spawning grounds or nursery areas, or to reduce carapau bycatch by trawlers. Any such measures should have active management with observers on board to monitor catch composition and timely opening of the closed areas where justified. Prohibitions (Art. The application of Art. 13.8 ‘descartes’ may Maintain Article 13.1 and consider inclusion of 13) conflict with Art. 14 (1). sardinella. An exception needs to be made low quality fish (e.g. not suitable for human consumption). Minimum sizes The article prohibits the catch of fish below Review language in the Article and its possible (Art 14) minimum size. However, this may be conflict with Art. 13(8) in terms of practical unavoidable. [DE 105/05 not sighted by application. consultants.] Transshippment Un-authorised transshipment reported as Further study of the problem required. Oblige (Art 19.4) common for semi-industrial seiners (linked to skippers to declare their (non-company) skipper payment system). landings. Selectively apply enforcement measures to make examples of buyers. Research and No mention of economic and social studies and Establish the cost structure of the fishery. investigation (Art research. Collect and compile annual cost and earnings 27) information (may require additional provisions in the decrees). Collect and analyse consumer price information on carapau and sardinella and establish the range of wholesale and retail margins, post- harvest losses and transport and freezer storage costs Research Length frequency of carapau from cruises Review all cruise data for correlations with cruises apparently differs from the length frequency of oceanographic conditions and in relation to (Art 27 (e)) the commercial catch. commercial catch frequency by area and Single biomass survey/year may not accurately season. reflect the actual biomass. Consider additional surveys using seiners. Fishing effort Effort is not standardised for industrial/semi- Undertake studies to standardise effort. (Art 27 (f)) industrial fleet. Consider use of catch per set as part of the measurement of effort (in addition to fishing days). Reference Few/no reference points established. See discussion in section 7.1.3 points Triggers for management actions not Set out a roadmap for the stock recovery (Art 27(i)) established in relation to reference points (e.g. if process with annual and short/medium term biomass falls below xx, then fishery closed for x targets. The process requires the active support months). of the industry based on a far greater level of shared understanding of the scientific rationale. Fleet (Art. 27 (j)) Separate fleet registers maintained by DNPPRP Unified information system is a fundamental and SNF. Registry (DNPPRP) missing some requirement – see discussion in 7.1.5 information on vessel characteristics.

Project Funded by the European Union pg. 30 A project implemented by COFREPECHE

Measure Issues Recommendations/ Solutions Other pelagics Maintain measures. (Art. 27.4) Other measures Import regime In the view of the consultants the rationale is The consultants believe that the Ministry should unclear for the quota, as producers claim that consider removal of all restrictions on imports if imports do not influence prices (to be confirmed the real market price of carapau significantly by independent study). increases. The allocation system is a financial transfer to Consider removal of quota and allocation industry and may prevent consumers benefiting system. It was advised. from lower priced carapau. Prepare a market study (production costs, margins, post-harvest losses, consumer prices, distribution). Fuel subsidies Subsidies unsustainable in the long-term. Prepare policy and process to reduce and eliminate fuel subsidies. Costs of Not currently available. management Public Ministry web site not functioning. Setup website/recover old website and update. information Transparency License and violation information not public. Publish list of license holders and fees paid. Publish violations and penalties paid/unpaid. Information Numerous issues. See discussion below. management Ecosystem Poor understanding of ecosystem dynamics. Continue and expand cooperation with Namibia and Gabon and through BCC.

In summary the core elements of the management plan are:

(a) Use and improve the existing management measures and upgrade the scientific advice including establishing socio-economic baselines. Careful consideration needs to be given to whether the existing measures are appropriate – in particular TACs, the closed season and total capacity/effort. (b) Improve the implementation of the measures and the functional cooperation between the national offices and with the provincial offices. (c) Substantially enhance the information system and the human capacity to effectively implement the management measures (see draft project description, Annex II. Study context and process). (d) Evaluate the impacts of the measures and adapt the measures to changes in the fishery. (e) Estimate the cost-effectiveness of the management regime and specific measures and examine options to reduce costs and improve effectiveness. (f) Assess the incentive/disincentive nature of various management measures and use to design more effective measures. (g) Improve the dialogue with industry and promote establishment of an industry code of responsible fisheries.

Project Funded by the European Union pg. 31 A project implemented by COFREPECHE

7 CONCLUSIONS AND RECOMMENDATIONS 7.1 Conclusions

1. There is an urgent need to improve the state of the horse mackerel fishery and associated small pelagics fisheries, in terms of the state of the fish stocks, industry productivity and the economic and social returns.

2. These improvements can be guided by an FMP for both the horse mackerel and associated small pelagics fisheries, as together they form a coherent management unit. A separate plan for the horse mackerel fishery is neither practical, nor consistent with an EAF. However, the focus of most of the management measures would be directed to rebuilding the horse mackerel fish stocks and the efficient and sustainable use of these fisheries and the human and economic resources.

3. The proposed management plan – referred to as the Horse Mackerel Management Plan, covers the entire small pelagics fishery and is based on three pillars:

(a) The existing policy, planning, legal and regulatory framework and the existing institutions, and procedures, appropriately interpreted and applied. (b) Improved scientific advice based on more comprehensive knowledge and understanding of the fishery, including knowledge of the fish stocks, the behaviour of the fishers and fishing companies, the social and economic drivers, and the domestic and international market conditions. (c) A substantially improved fisheries administrative system with particular attention to human resources development, development of communications and development of a knowledge and information system capable of accurately describing and monitoring the state of the fishery.

The following sections detail the main activities proposed under the plan and priority activities are compiled as a draft project proposal in Annex 8.2.

7.1.1 Policy, planning, legal and institutional framework 1. The policy, planning, legal and institutional framework is adequate and well designed to develop and implement the management plan. No substantive changes to the policies, laws or institutional arrangements are envisaged. However the linkages between policies, plans and delivery of results will need to be developed and an objective evaluation of the performance of the institutions and institutional cooperation undertaken.

2. The overarching strategic goals for the fishery are framed by the national and sector policies within a framework of sustainable development. Three closely related goals reflect the interests of the key stakeholders – the fishing industry (including small-scale producers, processors and distributors); consumers; and the central and regional administrations. These goals of sustainable food supply, economic development and employment can be summarised in the following ‘vision statement’:

Project Funded by the European Union pg. 32 A project implemented by COFREPECHE

3. Several key indicators can be used to track the performance of the FMP towards achieving this vision and in relation to the goals. Effective use of the following indicators is however entirely dependent on ensuring that the information used is comprehensive and valid:

(a) Biological Indicators. Global good practice is that when a stock is identified as overexploited, a recognised rebuilding programme is introduced. This should include a structured stock assessment process (which already exists). (b) Environmental. State of the fish stocks improving towards specific targets on a specified timescale, for example, above the long-term average in three years and at the target biomass in 6 years. While additional ‘ecosystem’ targets could be set (e.g. reduction in fuel consumption per tonne of fish produced), the fishery has minimal environmental externalities. (c) Productivity. Increases in aggregate company profits, in catch per unit effort and in labour productivity. Note that employment may not increase unless markets for value added products are developed. Baseline values would need to be established. (d) Prices. Stable supplies of small pelagics fish at affordable prices in all main urban centres. A price index and baseline could be developed based on CPI data. The trends in prices would reflect both supply and demand and the efficiency of the distribution system. (e) Regional development. Indicators could include the aggregate gross income of the fishing companies, the value of new investments, and multipliers derived from information on the structure of production costs (purchase of services, wages, and port fees).

4. The proposed components of the plan (see below) are deliberately chosen to cut across the sector institutions in order to avoid ‘stove-piping’ or separate sets of activities for different institutions. It is designed to require the institutions to cooperate more effectively and jointly prioritise joint actions, clarify responsibilities and facilitate knowledge exchange around common clearly understood targets and processes. The rationale for this arrangement is that while the plans and processes in each institution correspond to their formal roles, their separate achievements do not result in successful management of the fishery. The components can be considered as building blocks to allow the plan to be developed and effectively implemented as an adaptive management instrument. These building blocks are process orientated across the institutions and stakeholders rather than discrete modules within separate institutions, as the analyses in the preceding sections shows that all stakeholders require a shared understanding of the issues and constraints and more effective cooperation in developing and implementing solutions.

7.1.2 Effective use of policies plans and laws 5. The FMP would be integrated into the Plano de Ordenamento das Pescas25 currently under development and follow the stakeholder consultation and review process that currently exists through the Conselho Tecnico (CT) and Conselho de Gestão Integrada dos recursos biológicos e Conselho Consultivo. The FMP could take the form of an annex to the POPES and contain the following provisions:

(a) describe specific targets and milestones, responsibilities and coordinating functions; (b) describe the activities and related responsibilities; (c) identify the budgets and sources of financing to undertake the activities; (d) make provision for reporting on progress and for adaption to changing conditions in the fishery, for example, a quarterly report to the CG and Minister followed by a period for comments and realignment of the FMP

25 Note: the Plano has a legal status as an administrative regulation approved by the Council of Ministers (6/A-04, Art. 17).

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activities by ministerial instruction, if warranted. Short summaries of the state of the FMP could be made public on the Ministry web site; (e) the FMP would be based on a synthesis of the state of the fishery. This document would be in a continuously revised and updated and be made available to the public on an annual basis. It would assemble all the legal, administrative and other measures in a single fishery-specific document, and summarise the biological, economic and social dimensions of the fishery, describe progress in the FMP and identify constraints and solutions.

6. The POPES has four themes: (i) produce more and better, (ii) sustainable development, (iii) innovation and (iv) human resource development. The following components of the FMP target one or more of these themes.

7.1.3 Knowledge development and management 7. Knowledge development and knowledge management in several areas is essential to formulate an implement the FMP as the current state of knowledge of the fishery does not enable confident analyses, setting of robust targets and indictors. The first step is to assemble the available knowledge, verify its accuracy and underlying assumptions and remedy the gaps and deficiencies. A first step in this exercise is presented in first sections of this report. The following generic areas make up the main knowledge base and specific activities are described in subsequent sections (see 7.1.5. Information systems).

(a) State of the stocks (INIP, with inputs from SNF, DNPPRP and industry); (b) Physical drivers (INIP with inputs from the BCC, Nansen Programme, NOAA, IRD and possibly from the petroleum industry); (c) State of the management measures (DNPPRP with inputs from SNF industry, DProv., IPA, GJuridico); (d) State of the fishery economy including consumer prices for fish, imports and costs of management (GPE/DNPPRP with inputs from industry, Ministries of commerce/finance, INE, IPA, DProv. and others);

8. With regard to the state of the fish stocks specific biological reference points should be established that could include the following:

(a) A limit reference point – an indicator such as biomass levels at which the fishery may be closed or partially closed or some other measure introduced. (b) An upper reference point or stock objective – such as MSY or Maximum Economic Yield (MEY) or an agreed fishing mortality level. (c) An agreed set of data for inputs into the models used – baseline data that are agreed by researchers, industry and at the policy level for example, species splits, landing data, biomass inputs, bycatch and mortality estimates Ideally the data sets would include economic data, such as margins and profitability along the value chain in order to link the biological with the socio-economic analyses. (d) An agreed recovery rate to track the rebuilding strategy – normally done within an agreed time frame and with specific milestones, for example, medium-term (6 years) or long-term (10 years). The timeframe could take account of decadal oceanographic events, or natural attrition in the fleet. (e) The biological indicators should try and incorporate ecosystem implications so that the fishery moves towards EAF. Fundamental to this is ecosystem monitoring and a precautionary approach that accommodates risk based on an improved understanding of the ecosystem dynamics of the fishery.

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(f) All of these measures, including the points below would be consolidated into an overall agreed management procedure (Operational Management Procedure or OMP). An agree OMP makes it easier for scientists and managers to follow an agreed decision-making procedure. It is normally agreed for a period (for example 6 years) and regularly revised based on the reviews and evaluations of the FMP.

9. Ideally robust models would help project the biological and economic state of the fishery. However these models are only as good as the data upon which they rely. The minimum requirements for a surplus production model26, the kind currently used, are (i) a time series of relative abundance – this can be from research survey data, or Catch Per Unit Effort (CPUE); and (ii) time series of catch. Reported carapau biomass trends from the cruise data are difficult to interpret and may need to be supplemented with additional survey data. Catch and effort data require substantial improvement suggesting that the information system described below (section 7.1.5) is a fundamental step in constructing a viable model to underpin the FMP. The following figure (Figure 7) illustrates the classical model used to identify MSY and MEY.

Figure 7. Illustration of classical model used to estimate MSY and MEY Source: Arnason, Kelleher, Willmann 2009

7.1.4 Institutional cooperation and communication Proposed institutional arrangements 10. The following institutional arrangements to develop and implement the FMP could be considered:

(a) A task leader appointed and an office of the Ministry selected to coordinate the process. The Gabinete de Estudos e Planeamento (GEP) could be given this responsibility as it has more of a coordinating role and less of a line function in implementing plans. The GEP staffing and resources would need to be reinforced accordingly to include economists and project management specialists. (b) A permanent Management Group which would include senior managers in the Ministry and dependent institutions (DNPPRP, SNF, INIP, GJuridico, IPA and an industry representative if required). The Management Group would consider and approve the work plan, and assign finance and staff resources for the activities. Such an arrangement already exists and includes the Minister and SEF.

26 If the model is run using an equilibrium assumption the results need to be treated with great caution.

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(c) Technical group composed of the technical staff which would undertake the activities and prepare the progress reports for the CT and CG (this arrangement is also in place).

Cooperative functions The FMP would devote particular attention to ensuring that functions, which require close cooperation between institutions and offices, work efficiently. Two examples of these types of functions are illustrated in the following figures.

Figure 8. Examples of FMP activities requiring close institutional cooperation Source: Consultants

Communications Several reporting activities have already been identified (quarterly reports, state of the fishery). A key communications tool is the Ministry web site and urgent attention is required to re-establish a web site with current and historical information. In the interests of transparency, the Ministry could consider making public the following information on the web site:

(a) Licences and quotas by company; (b) Licence and other fees paid by companies; (c) Violations and penalties paid by company; (d) Unpaid fees and penalties by company; (e) Percentage of catch reports submitted by company; (f) Prices of carapau and small pelagics at landing points and in key urban markets.

Project Funded by the European Union pg. 36 A project implemented by COFREPECHE

In addition to the internal communications, regular formal exchanges of information with Namibia (and possibly with Congo and Gabon) on the fishery could be established and specific VMS data exchange programme could be considered (noting that a small pelagic working group between Namibia and Angola is being established).

7.1.5 Information systems 11. Improved information systems are a core component of the FMP. Two sets of information need to urgently be improved: (i) the vessel register and associated data bases; and (ii) the catch and effort database. Substantial investment is required over an extended period beginning with functional analysis and design and gradually building the information system. The following lists some of the data sets which need to be organised and/ or integrated with others:

(a) Vessel register; (b) Company register; (c) Licensing and fishing rights database; (d) Logbook database; (e) Landings database; (f) Effort database (from logbooks and landings) integration with VMS; (g) Artfish outputs integrated with provincial overall provincial catch/ landings data; (h) GIS database.

12. A distinction is made between registers and databases (and their associated reference tables). A register is considered to be a data set which does not frequently change, such as the list of vessels, or fishing companies, while the databases contain information which accumulates substantially over time, such as catches, landings, prices, VMS data, or salinity records. The reference tables are subsidiary data sets such as the list of species, list of ports, list of gear types or classes of vessels. In all cases (particularly for the registers) there needs to be a clear responsibility for data ownership and control and a unique set of key information shared by all the institutions concerned. For example, DNPPRP would draw on the SNF vessel register and the DNPPRP company register to generate the fishing licence. The Ministry’s finance office would draw the license database and company register to produce the receipt for licence fee payment. SNF would be able to access the DNPPRP licence database to have a current list of licensed vessels. However, only SNF staff could alter the vessel register and only DNPPRP staff could alter the license database, while DNPPRP staff would only be able to print the licence when the Ministry finance office has (electronically) acknowledged the licence fee payment. The following figure provides a conceptual notion of the structure of such an information system. A conceptual model of the system is illustrated in Figure 9.

13. It is proposed that such a system be carefully designed and introduced progressively module by module, fishery by fishery, province by province starting with the priority components such as the vessel register, the landings and catch (logbook) databases. It is essential to invest in staff training in the use of such a system, in competent IT support, secure computer systems and backups. Technical decisions on how data is transmitted to and from provinces and between institutions require careful consideration. Arrangements for crosschecking and verification of information require a presence in the field to identify potential problems with the information system.

Project Funded by the European Union pg. 37 A project implemented by COFREPECHE

Figure 9. Conceptual model of selected elements of the information system Source: Consultants

7.1.6 Role of industry 14. The industry should be encouraged to organise itself and to develop a code of responsible industry practices and ensure balance representation in the Conselho de Gestão. A responsible industry plays and essential role in the FMP. Fishing and other rights should be withdrawn from companies or operators with a record of persistent violations. If possible the record of misconduct should be made public. Specific proposals by the industry to improve public infrastructure (such as electric power supply or port facilities) should be encouraged and provisions made in the plan to address key concerns in association with other Ministries if necessary (finance, transport, commerce and regional governments).

7.1.7 Monitoring and evaluation of outcomes 15. A number of key social, environmental and economic indicators have already been suggested, means of tracking these indicators proposed (the information system) and a regular reporting system suggested. Further provisions are suggested in the POPES to facilitate adaptation of the plan in response to evaluations and unforeseen events. Without being ‘over-prescriptive’ provisions could also be made for precautionary measures linked to some of the reference points, for example.

“If the ratio between CPUE and biomass falls below 75 % of the previous period then an effort reduction programme is automatically triggered – vessels allowed to fish a maximum of 20 days per month until the ratio recovers.”

16. Additional external evaluation can also be considered, for example using regional experts from other BCC members, expertise from major donors such as Norway or the EU. Such an evaluation could take place every two years and would help engage donors in the implementation process.

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7.1.8 Transboundary cooperation 17. The BCC Convention establishes a sound basis for cooperation and the recent Angola/Namibia inter-ministerial protocol on fisheries further consolidates the political willingness. A joint management plan for horse mackerel (possibly with a particular focus on the ABF area) could include the following specific activities (some of which already take place):

(a) Reciprocal fisheries agreements allowing Angolan and Namibian vessels to fish in each other’s’ waters subject to the sustainability of the resources and based on a sound scientific understanding of the resource; (b) Reciprocal landing and fishing vessel repair services arrangements (for example, Namibian vessels landing fish at ports in southern Angola); (c) Safety at sea and emergency response arrangements; (d) MCS protocol which could include: hot pursuit arrangements; reciprocal exchange of VMS data (for example, when an Angolan fishing vessel enters Namibian waters, the Angolan SNF automatically sends the VMS signal to the Namibian MCS centre; hot-line arrangements to informally discuss arrests of fishing vessels; joint patrols in the border area. (e) Scientific cooperation and data exchange; (f) Training and institutional development; (g) Trade arrangements for import of small pelagics.

7.2 Recommendations The following recommendations are directed at the follow-up process leading up to and beyond the termination of this project, as this report is considered as a starting point rather than as an end in itself:

(a) The Ministry formally approve the preparation of a small pelagics management plan as part of the new POPES, designate the coordinating office, approve the allocation of funds and staff and appoint a ‘management team’ with senior representatives of the responsible institutions.

(b) The Ministry in close association with other stakeholders review this report to: (i) seek stakeholder consensus on the issues raised in the report and the solutions proposed; (ii) prioritise the proposed actions within the organisational and financial structure of the Ministry and its dependent institutions.

(c) The management team propose and gain stakeholder consensus on (i) a vision for the fishery, (ii) a roadmap, or outline process to achieve that vision; (iii) the key components and activities of the FMP; (iv) the estimated costs and benefits of the plan; and (v) the indicative timescales involved for specific achievements. This outline FMP (state of the fishery and process, or steps towards the vision) would be formally approved as part of (or an output from) the POPES.

(d) Agree at ministerial level on the division of responsibilities and leadership for different components of the FMP.

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(e) The management team secure industry support for the FMP process through consensus on the vision and process, consensus on the role of industry, through inclusion of key industry concerns in the FMP process and through a process of regular consultation and information exchange with the industry.

(f) The Ministry secure the finance and resources to prepare and implement the FMP through providing timely briefs to key ministries (planning, finance, commerce) and the donor community.

(g) Based on the FMP priorities the Ministry develop the transboundary dimensions of the FMP directly with Namibia and through the BCC through further development of the Angola/Namibia protocol on fisheries concluded in July 2013.

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8 ANNEXES 8.1 Annex I. Future directions FMP project proposal Note: Written in the form of a draft project proposal as requested by Angola

Summary Project Proposal (draft for discussion)

Development of the Fisheries Management Plan for the Horse Mackerel and Small Pelagics fishery in Angola

8.1.1 Background and need for the project The horse mackerel fishery is important both economically and as a preferred staple food in Angola. Imports of horse mackerel are in the order of 50 000 t/year to offset the shortfall in domestic production. The local production has declined due largely to collapse of the fish stocks, in particular the stock of Cunene horse mackerel. The Ministry aims to rebuild the stock from its present level of about 130 000 tonnes to 500 000 tonnes as a basis for a more productive and profitable fishery contributing to national food security and development of the southern provinces. The fishery management plan would chart a course to rebuild the fish stock and the fishery economy.

Fisheries management in Angola is constrained by three key factors. The first is knowledge of the changing marine environment, the dynamics of the fishery and the fish resources. This lack of knowledge is partly due to a loss of institutional memory and associated information systems as a result of disruptive institutional changes, in particular the amalgamation of the Ministry with the agriculture Ministry and its subsequent reestablishment in 2012. As a result, many of the procedures, administrative systems, lines of communication and information systems need to be re-established, or upgraded and the new staff trained. This human and institutional development is essential to recreate a fully functional management apparatus with the ability to prioritise management options, apply management measures and adapt the management regime based on effective monitoring and consultation processes.

8.1.2 Project purpose and objectives The overarching purpose is to establish an environmentally and economically sustainable small pelagics fishery. The Fisheries Management Plan (FMP) would build the strategy, roadmap, financing and human and institutional commitments to achieve this objective.

Specific objectives of the project 1. To prepare the FMP for the small pelagics fishery with particular emphasis on the horse mackerel fishery; 2. To implement the key components of the plan over an initial 2-year period.

The FMP is not an end in itself but a means of focusing efforts of the different institutions and stakeholders to achieve a common purpose through a shared vision and a implementing a series of well understood prioritised steps. These steps would involve contributions and participation from all parts of the Ministry and its dependent institutions, from the fishing industry and from provincial authorities.

Stakeholders The main stakeholders are as follows: Consumers, who rely heavily on small pelagic resources as a staple food, in particular the poorer segments of society who consume sardinella; Producers, including about 50 industrial/ semi-industrial companies; the artisanal fishers, particularly those in Luanda province; the demersal trawl companies which have a significant bycatch of small pelagics;

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Processors, including salt dried fish producers; Distributors and importers of carapau and several thousand women engaged in marketing fish; The Ministry and its dependent organisations;

8.1.3 Outcomes The immediate outcomes would lay the foundation for full development of the FMP and its medium to long term implementation. While the outcomes are focused on the small pelagics fisheries, all outcomes have direct application to all the other Angolan fisheries. The specific outcomes would be: 1. A formal management plan for the small pelagics fishery formally approved and under implementation; 2. Substantially improved biological and socio-economic scientific advice leading providing improved and adaptive management measures; 3. Trained staff at all levels of the management system; 4. A shared vision for the fishery generating effective cooperation between industry, central and provincial authorities; 5. Cost effective management and MCS; 6. A more responsible fishing industry actively engaged in and promoting sustainable fisheries.

8.1.4 Project components The project has three components: (i) institutional development; (ii) human resource development; and (iii) project management.

Component 1. Institutional development. Component 1.1. Knowledge development The first step is to assemble the available knowledge, verify its accuracy and underlying assumptions and remedy the gaps and deficiencies. The following generic areas make up the main knowledge base and specific activities are described in subsequent sections:

(a) State of the stocks (INIP, with inputs from SNF, DNPPRP and industry); (b) Physical drivers (INIP with inputs from the BCC, Nansen Programme, NOAA, IRD and possibly from the petroleum industry); (c) State of the management measures (DNPPRP with inputs from industry, SNF, DProv., IPA, GJuridico); (d) State of the fishery economy including consumer fish prices, imports and costs of management (GPE/ DNPPRP with inputs from industry, ministries of commerce/ finance, INE, IPA, DProv.).

The FMP would devote particular attention to ensuring that functions, which require close cooperation between institutions and offices, work efficiently.

Component 1.2. Information systems Improved information systems are a core component of the FMP. Improvement of two sets of information would receive priority: (i) the vessel register and associated data bases; and (ii) the catch/ landings and effort databases. Substantial investment is required over an extended period beginning with functional analysis and design and gradually building the information system. The following lists some of the data sets which would be organised and/ or integrated with others: (a) Vessel register; (b) Company register; (c) Licensing and fishing rights database; (d) Logbook database; (e) Landings database; (f) Effort database (from logbooks and landings) integration with VMS;

Project Funded by the European Union pg. 42 A project implemented by COFREPECHE

(g) Artfish outputs integrated with provincial overall provincial catch/ landings data; (h) GIS database; (i) Accounting packages for licencing/ project management/ other receipts.

The following activities would be funded: (a) Functional evaluation of the existing information systems: information flow, compilation, analysis and archiving; data ‘ownership’ and access rules, data coverage, cross checking and validation, data/information flow between institutions and from industry; feedback to stakeholders and reporting to policy makers; (b) Modular design of core components and testing in central institutions and selected provincial offices; (c) Training of staff in use of module (under Component 2); (d) Investments in software and hardware; (e) Investments in in-house IT capacity and contracted IT development and maintenance, including security, anti- virus and hacking, data protection, backup services and trouble-shooting; (f) Expansion of application of module, for example from an initial small group and one province to several provinces, and associated training; (g) Design, testing and application of other modules; (h) Development and maintenance of the Ministry website; (i) Archives and electronic library.

Component 1.3. Transboundary cooperation The FMP would develop cooperation in the following areas: (a) Reciprocal fisheries agreements allowing Angolan and Namibian vessels to fish in each other’s’ waters subject to the sustainability of the resources; (b) Reciprocal landing and fishing vessel repair services arrangements (for example, Namibian vessels landing fish at ports in southern Angola); (c) Safety at sea and emergency response arrangements; (d) MCS protocol which could include: hot pursuit arrangements; reciprocal exchange of VMS data (for example, when an Angolan fishing vessel enters Namibian waters, the Angolan SNF automatically sends the VMS signal to the Namibian MCS centre); hot-line arrangements to informally discuss arrests of fishing vessels; joint patrols in the border area. (e) Scientific cooperation and data exchange; (f) Training and institutional development; (g) Trade arrangements for import of small pelagics.

Component 2. Human resource development The component would mount a comprehensive program in the areas of economics and fisheries management, IT, statistics, project management and public administration. The HR activities would target not only the public service but business management and responsible fisheries for industry, organisation of women’s fish trader groups and marketing activities along the value chain.

Component 3. Project management The following will be the institutional arrangements to develop and implement the FMP:

(a) A task leader appointed and an office of the Ministry selected to coordinate the process. The Gabinete de Estudos e Planeamento (GEP) would coordinate the FMP and would be reinforced to include economists, project management specialist(s) and support staff.

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(b) A permanent Management Group which would include senior managers in the Ministry and dependent institutions (DNPPRP, SNF, INIP, GJuridico, IPA and an industry representative). The Management Group would approve the work plan, and assign finance and staff resources for the activities. (c) A Technical Group composed of the technical staff which would undertake the activities and prepare the progress reports for the stakeholder consultation processes. (d) Contracted services, such as for IT development.

Specific management actions would be designed as part of the plan. They would be founded on a more robust knowledge base and more effective management structure developed under the project. The following broad management actions could be designed and implemented: (a) Spatial management of the purse seine harvesting with a co-management component to reduce carapau bycatch in spawning periods and reduce catches of juveniles; (b) A demersal trawl bycatch management programme with close monitoring and control and possibly with spatial and seasonal management dimensions; (c) Management of artisanal fishing effort and catches of carapau; (d) Development and testing/ fitting of non-equilibrium models of the fishery, including an initial bioeconomic model; (e) Design and implementation of a program to identify linkages between oceanographic changes and biomass; (f) A marketing and efficient distribution programme including reduction of post-harvest losses and development of retailer associations (mainly women).

8.1.5 Costs, sources of finance and project timescale Cost estimates The estimated cost is USD 2.5 million of which at least 1.5 million would be spent on human resources development in the Ministry of fisheries, its dependent institutions and in the fishing industry. The remaining USD 1 million would primarily be used into developing the necessary software and hardware for the statistical system and its integration with the processes and procedures of the administration and the fishing industry. No provision is made for additional research survey cruises which may be required. Up to USD 0.25 million would be used to establish a robust industry organisation with a code of responsible industry practice.

Duration Project duration would be for an initial 2-year period from the time the project management and accounting arrangements are functional. The cost estimate is additional to the contributions of the Ministry, its dependent institutions such as INIP and IPA and the contributions of the provincial fisheries directorates in terms of time of existing staff and reallocated resources.

Risks and cost/ benefits The fish stocks have shown a continuous downward trend and without effective management the fishery may collapse entirely with substantial economic and social consequences. No estimate of the value of the fishery is currently available and a cost/ benefit exercise of improved management scenarios would be prepared during the project. An approximate economic value of the fishery including an economic multiplier of the value of production and consideration of the import economy suggests that the entire small pelagics industry may have a contribution in the order of USD 250 million/ year to the GDP.

M & E and indicators (a) Environmental. State of the fish stocks improving towards specific targets on a specified timescale, for example, above the long-term average in three years and at the target biomass in 6 years. While additional ‘ecosystem’ targets could be set (e.g. reduction in fuel consumption per ton of fish produced), the fishery has minimal environmental externalities.

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(b) Productivity. Increases in aggregate company profits, in catch per unit effort and in labour productivity. Note that employment may not increase unless markets for value added products are developed. Baseline values would need to be established. (c) Prices. Stable supplies of small pelagics fish at affordable prices in all main urban centres. A price index and baseline could be developed based on CPI data. The trends in prices would reflect both supply and demand and the efficiency of the distribution system. (d) Regional development. Indicators could include the aggregate gross income of the fishing companies, the value of new investments, and multipliers derived from information on the structure of production costs (purchase of services, wages, port fees).

Schematic of the management system and decision making

Schematic for the statistical system

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Project Funded by the European Union pg. 46 A project implemented by COFREPECHE

8.2 Annex II. Study context and process

8.2.1 ACP Fish II project and contributions of partners The objective of this ACP Fish II project is to support both Angola (and Namibia) to develop management plans for the horse mackerel fisheries. In Angola the management plan focuses on the more northerly species T. trecae and the fisheries that actively exploit it. In each country, the management plans consider the implications of the availability of the other species and the extent to which they may impact their fisheries and therefore need to be taken into consideration in the structure of their national management plan. COFREPECHE was engaged to undertake the project and under the Terms of Reference (ToRs) a fisheries expert and team leader visited Angola in August – October 2013 and worked in close cooperation with the Angolan authorities Two workshops were organised and a presentation made at a meeting with the fishing industry (in Benguela).

8.2.2 Schedule of field visits A single field visit was undertaken to Benguela from 2-6 September 2013 in the company of the National Director of Fisheries and Resource Protection and her staff. The purpose of the visit was for the new Director and some new staff to meet with the fisheries staff of the Province of Benguela and the fishing industry. The consultant had the status of an observer at the meetings, except for the meeting with approximately 25 industry representatives at which a presentation on the development of the FMP was made. A list of contacts is provided below.

The consultant(s) primary contact point was the Directorate of Fisheries and Resources Protection and most of the time was spent working with officers of this directorate. Other visits were made to a range of offices in Luanda, including: (a) Instituto Nacional de Investigação Pesqueira (INIP); (b) Instituto para o Desenvolvimento da Pesca Artesanal (IPA); (c) Serviço Nacional de Fiscaizacao (SNF); (d) Gabinete Juridico; (e) Gabinete de Planeamento e Estudos.

8.2.3 List of persons met and contact information Name Title/ Institution Contact Dr. Antonia Nelumba Secretary of State of Fisheries , (Secretaria de Estado das Pescas)Ministry of Fisheries Maria de Lourdes Sardinha Directora Nacional das Pescas e Protecção [email protected] dos Recursos Marinhos 94 923 5923 Tania Ramos Chefe de Departamento de . De Pesca [email protected] 912 202 100 Lia Sousa Neto Chefe de Dept. Proteccao dos ecossistemas [email protected] Daniel Simba Seccao Pescas [email protected] Francisco Mazingo Seccao Pescas [email protected] Jose Antero Chefe de Seccao Estatistica [email protected] Bernardo Moises Fernando Chefe de Departamento de protecção dos [email protected] Recursos Filomena Vaz Velho Director Geral do Instituto de Investigação [email protected] 222 309 732 Pesqueira (INIP) Antonio Barradas INIP Chefe de Dept de Rec. Biolog Nkosi Luyeye Director Geral Inst. De Desenvolvimento da [email protected] Pesca Artesanal e Aquicultura 222 02 2404 Isabel Cristovão Directora do Gabinete de Planeamento e Estudos

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Name Title/ Institution Contact Julia Airosa Ferreira Chefe Gab. de Planeamento e Estudos [email protected] Samuel Silva Neto Gab. de Plan e Estudos [email protected] Tresor Jose Gab. de Plan e Estudos [email protected] Carlos Martino Cordeiro Inspector . Geral Servico Nacional de [email protected] Fiscalizacao (SNF) 924 469 767 Manuel Paixao e Silva SNF/ VMS [email protected] Domingos Azvedo SNF [email protected] Luzia da Costa Directora de Gabinete da Ministra [email protected] Claudete Sousa Directora, Gabinte Juridico [email protected] Vincent Rodrigues van Halsema Project Manager Vincent.rodgigues-van- [email protected] Jorge Quituta Sea World Lda. [email protected] Pedro Alfonso Kingombo IPA (Instituto para o Desenvolvimento da [email protected] Pesca artisanal e Aquicultura

BENGUELA Jose Gomes Director Provincial das Pescas, [email protected] Benguela Paixao Franco Chefe Seccao Pescas, Benguela 923 75 8898 Dr. Fontinho FADEPA, Benguela Afonso Francisco Fiscalização, Benguela 92431153 Francisco Florentino Benedito FADEPA, Benguela [email protected] 923527822 Faustino Mesquita IPA, Benguela [email protected] 932715502 Miguel Amilcar Kalule Dir. Prov. Pesca, Benguelas [email protected] 923757716 Alvaro Pedron Alva Fishing [email protected] 923591820 Jorge Dias Apia [email protected] 923510099 Eusébio Lopes Assoc. pescadores 934240604 Casimiro Sobral CIP [email protected] 925462005 David Quissungo CIP [email protected] 923744621 Rui Anibal CIP 923690850 Vanafussa Jonico CIP [email protected] 923543257 Vasco M. Carmo Cominder [email protected] 947470694 Miguel Paim Congele, Lda [email protected] 923447888 Jorge Ferreira Hegipescas [email protected] 924446475 Tânia Areias Iemanja [email protected] 924052086 João Teixeira Fonseca INAIPIT [email protected] 923570802 José Maria Baptista Infopescas [email protected] 935698238 José Glória Jagmar, Lda [email protected] 923868329 Fernando Simão Luhongo mormolo [email protected] 922976259 Lopes Destino Mupindão [email protected] 924324451 Rui Branco Silva Oceantico [email protected] 915531191 Francisco K. Gabriel Pesca Fresca [email protected] 924208861 Johan Breed Pesca Fresca [email protected] 929591461 Arnaldo Vasconcelos Socipesca [email protected] 932748424 Carlos Viegas Vimar e Filhos [email protected] 923523205

Project Funded by the European Union pg. 48 A project implemented by COFREPECHE

8.3 Annex III. National workshop report 8.3.1 Objectives of the workshop The workshop was managed and directed by the Angolan stakeholders in order to ‘own’ the outcomes and the ongoing process. The BCC funded the workshop through UNOPS. COFREPECHE organised the agenda, the working groups and provided the required background materials, technical support and advice to the working groups and the plenaries.

The objective of the workshop was to ensure stakeholder dialogue on the proposed carapau management plan. The following were among the expected outcomes of the workshop:

(a) Agreement on the need for an FMP and a broad understanding of the function of the FMP as an adaptive tool, the process involved, the content and timescale for implementation; (b) A consensus on the state of the fishery, as a basis for a structured dialogue on the future of the fishery; (c) A consensus vision of the future of the fishery; (d) Identification of areas where there is a lack of consensus and consideration of actions to resolve points where there is a lack of consensus; (e) Outline a formal process to map a consensus path to realise the agreed vision drawing on the relevant articles of Law 6-A/04 and lessons from other fisheries management plans; (f) Identify responsibilities for stakeholder contributions to the process, including reduction of uncertainties and more robust information on catches, the economy of the fishery and other critical knowledge required to inform decisions; (g) Identify sources of support for completion and implementation of the plan and propose a timescale and milestones for completion of the plan.

8.3.2 Proceedings of first plenary session The National Workshop was held on 18-19 September 2013 in the Ministry of Fisheries and a full workshop report is under preparation by the workshop secretariat. The agenda, list of participants and details of the working group tasks are provided below.

On behalf of the Minister, the meeting was opened by Dr. Antonia Nelumba, General Secretary of the Ministry of Fisheries. Dr. Nelumba stressed the importance of the fishery in the national economy in the context of food security, poverty reduction, employment and economic development. She stressed the need for sustainable use of the resources and improved economic performance of the industry. She recognised the challenges posed by the uncertainty surrounding the causes for declines in the stocks of carapau. She asked the participants to consider the biological, economic and social dimensions of the fishery and thanked the international development partners for their cooperation in the sector.

Ms Maria de Lourdes Sardinha, National Director of Fisheries and Resources Protection provided an overview of the need for an FMP and the steps and considerations involved in developing the FMP, stressing that the workshop was a first step in a process. Dra. Filomena Vaz Velho provided an overview of the carapau resources and the scientific basis for the management measures. She underlined some of the uncertainties concerning the stock dynamics and the information base for management. Ms. Tania Ramos provided an updateon the status of the commercial fishery, including the fleet, production and imports of carapau. The COFREPECHE team provide a ‘rolling slide show’ which highlighted aspects of the carapau fishery and similar small pelagic fisheries from which management lessons could be learned.

Project Funded by the European Union pg. 49 A project implemented by COFREPECHE

Kieran Kelleher, COFREPECHE expert, outlined the structure and operation of the working groups, their management and their tasks. He stressed that the participants should consider all aspects of the fishery ‘from net to plate’. The participants selected the chairs and rapporteurs for the working groups. The Working Groups reported to the plenary at the end of the first day. Each presentation was followed by a questions and answers session.

Key conclusions included: (i) preparation of a management plan for the small pelagics fisheries as the most coherent management unit, rather than the carapau fishery; (ii) that many of the approaches proposed by the consultants should be further explored; (iii) that substantial additional catch, effort, economic and biological data and information would be required to prepare a robust management plan; and (iv) that a range of opportunities for closer collaboration with Namibia should be explored.

During the second day’s proceedings, the full reports of the working groups were presented and discussed. The workshop rapporteur is expected to make a full report available when cleared by the Ministry. Ms Sardinha explained that there would be a follow-up regional workshop with Namibia in October. She thanked the participants and the COFREPECHE team for their hard work and on behalf of the Minister declared the workshop closed.

8.3.3 Workshop agenda

Ministério das Pescas

Workshop Nacional Preparação do Plano de Gestão da Pescaria de Carapau

Programa do Workshop Sala de Conferência do Ministério das Pescas Luanda, 18-19 Setembro 2013

1ª Jornada 08:30 ate 17:00 08:30 Chegada dos participantes

09:30 SESSÃO 1. Abertura e apresentações técnicas Moderadora. Júlia Airosa Ferreira (Gabinete de Estudos e Planeamento) Introdução, apresentação dos objectivos do encontro 10:00 Abertura Sua Excelência Ministra das Pescas 10:30 Apresentações Técnicas Natureza dum Plano de Gestão Pesqueira (PGP) – um instrumento de orientação e adaptação. Maria de Lourdes Sardinha (Direcção Nacional de Pescas e Protecção dos recursos Pesqueiros) Situação da pescaria de carapau e perspectivas pelo futuro Filomena Vaz Velho (Instituto Nacional de Investigação Pesqueira) Gestão corrente da Pescaria Tânia Ramos, (Direcção Nacional de Pescas e Protecção dos recursos Pesqueiros) Discussão 11:00 Intervalo

Project Funded by the European Union pg. 50 A project implemented by COFREPECHE

11:30 SESSAO II. Grupos de Trabalho 11:35 Apresentação da metodologia dos Grupos de Trabalho. Kieran Kelleher (Consultor COFREPECHE/ Projecto ACP Fish II) e Membros do Grupo de Trabalho sobre o Plano de Gestão 12:00 Organização dos Grupos de Trabalho 12:45 Trabalho em grupos 10 minutos sobre procedimentos - introduções, leitura das questões, observações sobre o plano de trabalho do grupo. 13:00 Almoço (1 hora) Trabalho em Grupos 14:00 Trabalho em grupo 15:30 Café (15 minutas) 15:45 Trabalho em grupo 16:15 Apresentação das conclusões dos grupos de trabalho 5-7 minutos p/ grupo 16:45 Alocação das responsabilidades pelas sínteses (trabalho de casa) – 1-2 paginas a preparar p/ cada grupo, a estar pronto logo pela manhã. 17:00 Fim do 1º dia 2ª Jornada 09:00 ate 13:00 08:30 Café Discussão geral sobre as conclusões do primeiro dia. Presidente da sessão: Nkosi Luyeye. Instituto de desenvolvimento da Pesca artesanal IPA 09:50 Preparação de síntese dos resultados do workshop a) Situação da pescaria e visão para o futuro b) Elementos/ etapas críticas/ prioritários para atingir a visão c) Processo de avançar o plano incluindo aspe tos financeiros d) Listagem das oportunidades para comparação com a Namibia no curto, médio e longo prazo Presidente da sessão: Directora Nacional das Pescas 10:45 Café 11:15 Encerramento do Workshop. S/ Excia,Secretária Estado das Pescas Presidente da sessão: Dra. Júlia Airosa Ferreira

8.3.4 Structure and tasks of the working groups

GRUPOS DE TRABALHO Instruções pelos grupos

1. O presidente e o secretário de cada grupo já estão seleccionados (se não estão presentes informar a Dra. Maria de Lourdes Sardinha para indicar um outro participante). 2. A função do secretário é de escrever as notas das sessões e preparar as sínteses. 3. Cada grupo tem questões diferentes. 4. No inicio do trabalho o presidente de cada grupo organiza: Introduções; A leitura (individual) das questões em anexo; Cada pessoa dentro do grupo terá 2-3 minutos para opinar e fazer observações sobre os trabalhos e questões. 5. Todas as ideias e opiniões devem ser formuladas numa maneira breve, escritas em cartões (Post It), fixados no quadro do grupo e organizados por assunto.

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6. Durante uma sessão, se houver conflitos de opiniões ou questões não resolvidas, estes assuntos e observações deverão ser postos no zona Parking (para consideração no futuro). 7. Cada grupo pode incluir outras questões críticas que os membros consideram relevantes. 8. Antes do fim de cada sessão o grupo deve reservar 10 minutos para fazer a síntese.

Grupo 1. Grupo 2. POLITICAS, ESTRATÉGIAS E VISÃO INFORMAÇÃO E DECISÕES Grupo 3. Grupo 4. MEDIDAS DE GESTÃO ASPECTOS ECONÓMICOS E SOCIAIS

GRUPO 1: POLITICAS, ESTRATÉGIAS E VISÃO

Grupo 1 Políticas, Estratégias e Visão Manuel Bessa : Presidente (MINCO) Américo Silva: Secretário (MINPESCAS) Espaço Neto (MINPESCAS) José Tshicosse (MINPESCAS) António Barradas (MINPESCAS) Pascoal Carlos (MINPESCAS)

Objectivos e intervenientes (stakeholders), visão e cenários pelo futuro desenvolvimento da pescaria.

Questão 1. Objectivos Preparar uma lista dos objectivos dos diferentes intervenientes para a pescaria de carapau (ou pescarias de pequenos pelágicos). Ordenar e categorizar os objectivos. Identificar áreas de consenso/ coerência. Identificar áreas de conflitos de interesses.

Questão 2. Visão Preparar uma descrição breve da visão do futuro da pescaria. Um paragrafo, de preferência uma frase que representa um consenso do grupo sobre os objectivos e ordenamento das prioridades. Balancear uma visão ideal com uma visão realista. Se não há consenso – indica.

Questão 3. Partilha dos benefícios/ rendimentos socioeconómicos da pescaria Formular opiniões sobre a distribuição dos benefícios da pescaria, por exemplo, entre armadores industriais, pescadores artesanais, consumidores, outros. Ordenar os beneficiários em termos dos rendimentos económicos (por exemplo, lucros, emprego) e riscos. Por exemplo: pescador artesanal – lucro baixo e riscos altos. Se não houver consenso – indica. Como pode equilibrar os benefícios entre os intervenientes, incluindo considerações com a contribuição da pescaria ao desenvolvimento regional, a pesca de pequena escala, o emprego? Quais são os princípios, critérios e praticas de alocação de acesso/ de licenças/ importações? Na prática estão a cumprir os objectivos?

Questão 4. Namibia. Quais são os elementos e implicações para a cooperação com a Namibia Por exemplo, como pode desenvolver e aplicar os acordos bilaterais e internacionais? Quais são as iniciativas concretas, realísticas e mais praticas no curto, médio e longo prazo?

Project Funded by the European Union pg. 52 A project implemented by COFREPECHE

GRUPO 2: INFORMAÇÃO E DECISÕES

Questão 1. Informações critica pelas decisões Preparar uma lista das informações, ou categorias de informações mais importantes para informar as decisões da administração e a indústria (os actores privados mais importantes). Incluir informações necessários pelas decisões sobre: a politica pesqueira e gestão socioeconómica da pescaria; a produção de conselhos científicos biológicos e a aplicação dos conselhos em pratica; a avaliação dos impactos das decisões e medidas de gestão.

Questão 2. Responsabilidades Quem deve criar ou fornecer, recolher, analisar a informações críticas (por exemplo, diários de bordo, esforço da pesca, preço de carapau, rentabilidade da industria)? Quais são as deficiências especificas e mais importantes na qualidade, cobertura e análise? Como podem ser resolvidos?

Questão 3. Comunicação Como e a quem deve ser comunicado as informações e analises criticas, internamente no aparelho do estado e com os outros intervenientes (industria e publico). Quais são as categorias de informação recolhida pela administração que NÃO deve ser disponível ao publico (licenças, quotas, pagamentos, multas, capturas por empresa?).

Questão 4. Decisões Existem diferentes maneiras de melhorar o processo de tomar decisões – ou preparar as recomendações aos níveis superiores (conselho consultivo, Ministra, preparação de decretos presidências., etc.). Por exemplo de ajustar quotas, veda, ou outros medidas ao longo do ano.

Questão 5. Avaliação Como estão sendo avaliados os impactos das medidas de gestão? A avaliação é adequada, se não é, como deve ser feita no futuro?

Questão 6. Indicadores e pontos de referência Quais são os indicadores e pontos de referência biológica, económica e social? Como são estabelecidos e quais são as acções associadas? Por exemplo: Indicador – preço de carapau. Como esta estabelecido – recolha de preços nos mercados pelo INE. Acção/ regra: Quando o preço médio aumenta mais que 10 %, a quota das importações aumenta mais 5 000 toneladas.

Questão 7. Namibia. Quais são os elementos e implicações para a cooperação com a Namibia? Por exemplo, quais são as informações que devem/ podem ser comunicadas regularmente? Existe decisões que devem ser (ou seja melhor) ter sido tomadas conjuntamente? Existe informações oceanográficos críticos que devem ser recordadas e trocadas (alem das informações trocadas actualmente)?

Project Funded by the European Union pg. 53 A project implemented by COFREPECHE

GRUPO 3: DESENHO, APLICAÇÃO E IMPACTO DAS MEDIDAS DE GESTÃO Questão 1. Preparar uma lista das medidas de gestão mais importantes

Medida Alvo biológico Alvos: frota/ Responsabilidade A medida Se não, como a esforço de pesca/ p/ aplicação da funciona na medida pode funcionar socioeconómico/ medida maneira pré- efectivamente. outros concebida? Seria melhor não S/N aplica-la? Exemplo: Preparacao da Controle da quota DNPPRP Não. Rever a necessidade Recolha de TAC Direcção Prov. Não há de quota por barco. informação Fiscais estimativas Estudar e estimar as sobre capturas INIP (amostragens das capturas capturas não por espécie) não registadas. Comparar registadas. capturas registadas de O racional de DP e fiscalização. quota por Mapeamento das barco não esta captura por zona, clara. utilizando informação SCS. Exemplo: Não aplicável Abastecimento a DNPPRP Não sei. Recolha de preços Isenção direitos preço ‘razoável Fiscalização Não há unitários das alfandegários; Alfandegas informação importações de quotas sobre o preço carapau; noção dos importação de unitário das stocks de peixe carapau importações e congelado; os preços ao conhecimento de nível do estrutura da consumidor. distribuição (custos, margens, preços).

Questão 2. Desenho e articulação das medidas Elaborar uma lista das medidas de gestão que não funcionem bem. Indicar porque. Indicar as deficiências mais importantes em termos de impactos sobe os recursos e a economia da pescaria (incluir medidas orientadas na comercialização do carapau e dos pequenas pelágicos). Existe medidas que não são coerentes? Por exemplo, durante a veda não é permitida a captura de carapau. Mas, também existe uma proibição sobre descartes, enquanto a captura de carapau é feita conjuntamente com outras espécies (bycatch). Existem medidas que não servem uma função útil? Existe medidas que não podem ser aplicadas na prática? Se existe, elaborar uma lista.

Questão 3. Redução das infracções As infracções mais frequentes da frota de cerco são apresentadas na tabela (entrevista D.Fiscalizacao): Infracção Frequência Impacto sobre recurso Impacto socioeconómico Zona protegido Muito frequente a determinar a determinar Captura durante a veda Frequente a determinar a determinar Captura de juvenis Frequente a determinar a determinar Baldeação sem Muito frequente a determinar a determinar autorização Quais são os impactos? Como pode reduzir o número de infracções?

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Questão 4. Gestão temporal e por zona Seria possível gerir a pescaria em termos das zonas e épocas numa maneira mais ligada ao estado da pescaria e composição das capturas em tempo real? Por exemplo, de fechar/ proteger áreas de altas concentrações de carapau juvenil ou carapau em estado de desova. Qual e a informação, a cooperação e as medidas que serão necessários para estabelecer aquela tipo de gestão?

Questão 5. Verificação e cruzada de informações. Existe normas para cruzamento das informações críticas recolhidas? Por exemplo, no caso de bycatch de carapau dos barcos de arrasto, as informações sobre as capturas, dos transbordos e das descargas são cruzadas, ou não? A informação sobre esforço de pesca (dias de pesca) recolhida pela D. Fiscalizacao e cruzada com a informação registada pelas direcções provinciais (o que esta a ser reportada pelas armadores)?

Questão 6. Namibia. Quais são os elementos e implicações para a cooperação com a Namibia? Por exemplo: As medidas em ambos os países devem ser compatíveis? Seria útil de partilhar informação SCS (VMS) com a Namibia quando uma embarcação de pesca Angolana entra nas aguas de Namibia? Seria útil, ou não, para a Angola de levar conjuntamente com a Namíbia a questão da pesca de carapau juvenil na Namibia?

GPUPO 4: ASPECTOS ECONÓMICOS E SOCIAIS

Eficiência económica e social da pescaria

Questão 1. Qual é a situação económica das empresas? São rentáveis as empresas de frotas de cerco (em media ou agregada)? Pode-se distinguir entre a rentabilidade das empresas integrada verticalmente (barcos, armazenagens, sistema de distribuição) e empresas não integradas (por exemplo, empresas sem instalações em terra). Seria possível sintetizar a informação sobre a estrutura de custos de produção e os custos da distribuição de carapau (ou pequenos pelágicos)? Quem pode ou deve fazer e como pode ser feita esta analise?

Questão 2. Eficiência económica Quais são os maiores constrangimentos na produção nacional de carapau e pequenos pelágicos? Por exemplo – medidas de gestão ‘pesadas’, falta de estaleiros navais, preço de combustível, falta de electricidade, rede de frigoríficos para distribuição no interior do país, matéria-prima para a secagem, concorrência com as importações de carapau, ou outros constrangimentos.

Questão 3. Importações A quantidade das importações influência o preço de venda dos produtores nacionais ou não? Qual é a influência das importações sobre o preço de carapau pelos consumidores?

Questão 4. Situação da cadeia de distribuição e valor Existe perdas importantes pós-captura? Por exemplo, existe uma estimativa da percentagem do volume ou do valor das perdas? Como se pode melhorar o sistema de distribuição? Por exemplo, seria útil divulgar a informação corrente sobre os preços de carapau. Seria também útil capacitar e organizar as mulheres vendedoras? Seria possível aumentar o volume médio de cada importação, que esta por volta de 200 toneladas (media) a 1 000 toneladas, para a redução de custos unitários de transporte.

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Questão 5. Consumo Na opinião do grupo, qual é o estrato social da população que mais consome: Produto/ população Mais pobre Pobre Renda média Rica Carapau congelado Sardinella Pequenos pelágicos secos Sardinha em lata

Questão 6. Namibia. Quais são os elementos e implicações para a cooperação com a Namibia? Por exemplo: Existe oportunidades de estruturar um acordo comercial para a importação de carapau da Namibia com volumes e tabelas de preços acordados a médio prazo entres os exportadores da Namibia e os importadores de Angola?

8.3.5 List of participants and photographs (Angola National Workshop)

N° Name Title Institution Contact Days Attended 1 Japp, D Mr COFREPECHE [email protected] 1 & 2 2 Kelleher, K Mr COFREPECHE [email protected] 1 & 2 3 Azevedo, D Mr SNFA (Ficalizcaoe) [email protected] 1 4 Dielbaka, N Mr GI [email protected] 1 5 Delicado, F Ms INIP [email protected] 1 & 2 6 Bessa, M Mr MINCO (DNAI) [email protected] 1 & 2 7 Luyeye, N Dr IPA [email protected] 1 & 2 8 Cipriano, D Mr GAB Ministry [email protected] 1 9 Yanga, M Mr EDIPESCA [email protected] 1 10 Condeino, C.F. Mr SNFPA [email protected] 1 11 Pascoal, B.J. Mr SNFPA [email protected] 1 & 2 12 Paixao e Silva, M Mr SNFPA [email protected] 1 & 2 13 Silva, J Mr SNFPA [email protected] 1 & 2 14 Kumbi, K.N Mr INIP [email protected] 1 15 Velho, F Dr INIP [email protected] 1 & 2 16 Chikossi, J Mr COAPESCAS 926215885 1 & 2 17 Dsnlod, H Mr GEOE 923346843 1 18 Simba, D Mr DNPPRP 925879540 1 & 2 19 Guinarges, R Mr DNPPRP 928334324 1 20 Secuedo, A Mr Vicuar & Filhodildi 923477006 1 21 Bernado, Mario Mr AIM; ARCOIRN 946908747 1 22 Kingomdo, P Mr FPA 923535215 1 & 2 23 Fernandes, B Mr DNPPRP 926374980 1 & 2 24 Silva, A Mr Ministry des Pescas [email protected] 1 & 2 25 Fimgeito, T Mr Minst des Pescas [email protected] 1 & 2 26 Barradas, A Dr INIP [email protected] 1 & 2 27 Almedina, E Mr DNPPRD 923602928 1 & 2 28 Tresor, J Mr GEPE 912135850 1 29 Pedro, M Mr Sealine LDA 947998692 1 30 Paixao, A Mr Fiscalizado K. Sul 927944226 1 & 2 31 Neto, E Mr Dept de Pesca KSul 937144916 1 & 2

Project Funded by the European Union pg. 56 A project implemented by COFREPECHE

32 Sceuedo, A Mr Vicuar & Filhod 923477006 1 33 Mario, B Mr AIM; Arcoirts 946908747 1 & 2 34 Ferreira, J Ms GEPE 924822254 1 & 2 35 Sardinha, M Ms Ministry des Pescas [email protected] 1 & 2 36 Neto, L Ms DNPPRP 923608610 1 & 2 37 Icunguie, P Mr Sea World 912303527 2 38 Tsuia, T Mr DNPPRP 912202100 2 39 Safo, M Mr Sealine LDA 947998691 2 40 Quituta, J Mr Ango Oceana 1

Opening of Workshop by Secretary General of Ministry Participants in Workshop plenary

Group photo of Workshop participants

Project Funded by the European Union pg. 57 A project implemented by COFREPECHE

INIP director, Filomena Vaz Velho illustrating the changing Working Group V in session carapau biomass Figure 10. National Workshop: Opening, participants and activities

Project Funded by the European Union pg. 58 A project implemented by COFREPECHE

8.4 Annex IV. Supplementary background information

8.4.1 The Benguela Current system - oceanography

Figure 11. Decadal changes in the Benguela current system

The Northern regime of the Benguela Current Large Marine Ecosystem (BCLME) has tropical features while the Southern regime consists of a colder nutrient rich upwelling. Lüderitz, Namibia, has the strongest upwelling in the region. Changes that have occurred/are occurring on a decadal period are primarily:

1. Change in wind speed and direction – intensified in offshore direction in the summer months.

2. Sea surface temperature (SST) trends over the same period include: - a general warming of surface waters in both the northern and southern part of the system, but a cooling of the inshore waters off western and southern coasts of South Africa, leading to an intensification of cross-shelf SST gradients in this part; - long-term warming of SST at both extremes of the system as well as cooling of inshore water on the west and south coasts of South Africa; - recurring intrusion of warm, low salinity and low oxygen water down into more southern parts, around Walvis Bay, from the most northern parts (e.g. through Benguela Niños), leading to warming of waters and lowering of oxygen levels (the latter affecting the hake stocks). This is the most important perturbation in the northern Benguela. Benguela Niños can be predicted up to two months in advance.

3. Chlorophyll concentration (primary production - phytoplankton) – no long-term trend in phytoplankton concentrations has been detected. Trends in oxygen level (primarily in the St Helena Bay area) – oxygen level below thermocline has been declining. This has been extending further offshore.

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4. Zooplankton abundance – this has greatly increased in the southern part since the 1950s, but has declined from 2000. In the northern Benguela, the trend has been less clear since the 1970s but there has been a noticeable decline since 2000. A reduction in the larger animals may mean changes in overall size structure as well. The cause could be environmental anomalies or a change in abundance of small pelagic stocks, however, a decline in some small pelagic stocks is noted.

5. Changes in catches of major resources – all countries have suffered some major declines in catch. Dramatic changes have occurred in the northern parts (essentially with no small pelagic fish left in this region; and some changes in catch of horse mackerel, hakes, snoek, and rock lobster) and in the southern parts, catch of small pelagic fish is not as high as in the 1950s, with some changes in catch of horse mackerel, hakes, snoek, and rock lobster. There are not many detailed data from Angola available, although there has been a known decline in sardinella catches.

6. Changes in top predator abundance – in the northern parts, there has been a general increase in seals following declines in the 1990s. Seabirds have suffered continual decline in the northern parts associated with decline in prey biomass.

Figure 12. Warm (red) and cold (blue) oceanographic events off the Angolan coast 1982 - 2006 Source: untitled report

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Figure 13. Changing sea surface temperatures in Angolan waters in hot and cold seasons Source: IRD 2013

Current hypothesis. The virtual removal of the wasp-waist species sardine and anchovy from the northern BCLME ecosystem in the 1970s and 1980s has resulted in a shift to a less efficient and less environmentally robust regime, believed now to be dominated by gobies, jelly fish and horse mackerel, with no sign of a recovery despite low fishing pressure on sardine and anchovy over the past two decades. In the southern BCLME the most obvious change in the ecosystem over the past few decades has been the shift in the distribution of sardine, anchovy and rock lobster to the Agulhas Bank in the late 1990s. The reasons for this are poorly understood but are believed to be at least partly environmental. This shift is presumed to be localised and reversible compared to the northern BCLME.

Scenarios. A number of these (with potentially negative consequences for the resources of the northern BCLME), were presented to the BCLME Climate Change Workshop by Roux and Kreiner (in Veitch, 2007), and are listed below:

Widespread reduction in coastal upwelling leading to a warm, tropical and low productivity system with disastrous effects on current fisheries for temperate species; Enhanced upwelling leading to enhanced productivity, increased turbulence and offshore advection. Negative consequences of this would include an increase in the localpro duction of LOW through biogeochemical processes, and therefore an increased risk of hydrogen sulphide eruptions; An increase in the severity and frequency of Benguela Niños, leading to a decrease in productivity, and increased vulnerability of fish stocks to over-exploitation; A non-linear response of the ecosystem to general, low-amplitude changes in the ecosystem induced by gradual climate change, producing a succession of rapid regime shifts between semi-stable states. It was postulated that such shifts would have the most impact on the pelagic fisheries of the region.

It must be emphasised that these scenarios are purely conjectural, and that their likelihood (or that of alternative scenarios) cannot be quantitatively assessed from current information.

8.4.2 Biology Generic biological information on T. trecae Phylogenetic diversity index (Ref. 82805): PD50 = 0.5000 [Uniqueness, from 0.5 = low to 2.0 = high]. Bayesian length-weight: a=0.01180 (-0.10279 - 0.12639), b=2.92 (2.85 - 2.99), based on LWR estimates for species & genus-BS (Ref. 93245). Trophic Level (Ref. 69278): 3.5 ±0.38 se; Based on food items. Resilience (Ref. 69278): Medium, minimum population doubling time 1.4 - 4.4 years (K=0.26). Vulnerability (Ref. 59153): Moderate vulnerability (36 of 100). Adults are sometimes found near the surface. They form schools (Ref. 2683). Commercial fishing trawlers catch this species at depths up to 650 m (J. Luyben, pers. Comm. 10/02). Adults feed mainly on crustaceans (Ref. 4233). Eggs are pelagic (Ref. 4233). Bentopelagic (a schooling species). Usually occuring near bottom (15°-22° C)between 20 and 100 m depths;also sometimes pelagic and near surface at times.Feeds primarily on crustaceans. Source: Fishbase (http://www.fishbase.org/summary/371)

8.4.3 Trends in the horse mackerel fishery Horse mackerel makes an important contribution to the small pelagic fishery in Angola. In terms of volumes landed, in the 1990s this fishery was the largest in Angola. The two horse mackerel species, Cunene (T. trecae) and Cape (T. capensis)

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Support for the devising of the management plan for the Horse Mackerel fishery Angola and Namibia Final Technical Report - Preparation of the Horse Mackerel (T. trecae) Management Plan for Angola (AFA159R03CEN) are mixed on fishing grounds in the Cunene – Benguela area and are not easily separated in landings. The fishery is exploited by purse seiners, and horse mackerel is also a significant by-catch in demersal trawls. They are also caught in the artisanal fishery. The extent to which Cape horse mackerel is reflected in the historical catch trend is unknown (Figure 14, Table 9). With the exception of 2008, catches were very low from 2004 to 2009. Stocks of Cunene horse mackerel are believed to be in a growth over fishing state with a low biomass level. In 2002 the mid-water trawl fishery was closed. As the resource did not respond, the TAC was also reduced from 80 000 to 40 000 tonnes and further reduced in 2007 to 24 000 t. The 2009 TAC was set at 15 000 t and closed seasons and a 10 % bycatch limit on demersal trawls introduced.

2004 2005

700 700 600 600 500 500 400 400

300 300 N (milhoes) N N (milhoes) N 200 200 100 100 0 0 5 8 11 14 17 20 23 26 29 32 35 38 41 44 47 50 5 8 11 14 17 20 23 26 29 32 35 38 41 44 47 50 Comprimento total (cm) Comprimento total (cm)

2006 8 CPUE da cerco 7 CPUE arrasto demersal 6 700 5 600 500 4 400 3 300 2

N (milhoes) N 200

1 100 Toneladas/dia Toneladas/dia de pesca 0 0 1997 1998 1999 2000 2001 2002 2003 2004 2005 5 8 11 14 17 20 23 26 29 32 35 38 41 44 47 50 Ano Comprimento total (cm)

Figure 14. Variability in length distribution of T. trecae 2004-2006; trend in CPUE of T. trecae (1998-2005) Source: untitled report

Table 9. Estimated artisanal landings of carapau, 2012 (tonnes) Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec Total Cabin da 1 0 0 1 1 0 251 0 0 0 2 67 324 Bengo 1 0 2 1 3 1 0 0 15 10 1 1 34 Luanda 1 4 65 7 3 7 124 23 625 63 2 17 1007 K. Sul 27 0 0 35 18 0 0 1 2 0 0 5 87 Benguela 10 103 115 90 45 4 59 48 42 7 1 1 549 Namibe 0 4 2 0 0 7 2 31 30 11 9 3 102 Total 42 111 185 133 70 19 436 103 714 91 15 95 2103 Source: IPA statistical report 2012 (from Artfish)

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Table 10. Total recorded catches in Benguela province in 2012 (tonnes) Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec Total Sardine 3 996 7 074 4 225 1 939 4 223 4 437 3 678 4 676 5 620 2 751 2 619 3 866 49 114 Horse 952 1 562 914 916 914 944 821 799 727 1 403 1 090 679 11 719 mackerel Other 450 10 140 105 330 548 47 386 122 26 84 70 2 276 pelagic Total 5 398 8 646 5 279 2 960 5 467 5 928 4 546 5 860 6 469 4 180 3 793 4 615 63 109 Industrial 2 282 2 907 1 927 1 927 1 909 2 376 1 964 2 793 2 772 2 086 2 436 2 831 28 208 Semi- 2 078 3 172 3 173 1 490 3 513 3 287 2 316 2 984 4 710 2 350 1 555 1 997 32 624 industrial Source: DP Benguela

State of the fisheries for small pelagics 2003-2005 (extracted from various reports) Survey biomass estimates are used in surplus production models, but the results are inconsistent. Landings and biomass estimates suggest high mortality rates and poor recruitment. Catch rates suggest a decline in availability of both T. trecae and T. capensis. Transboundary surveys of T. capensis between Angola and Namibia from 2000 to 2006 show estimates of abundance to be very variable. The primary management objective is to recover the horse mackerel stocks to the estimated 1996 level of approximately 500 000 tonnes (SOS 2012).

Biomass estimates are obtained from the results of annual surveys conducted by the research vessel, RV Dr Fridtjhof Nansen. The 2009 results indicated the total Horse mackerel biomass to be at 105 000 t. Of this amount, 22 000 t is estimated to be T. capensis, mostly found in the southern province. A significant decline in biomass was observed in 2001 as a result of an intense El Niňo between 1999 and 2000. An even further decline was seen since 2006, with the lowest estimate being made in 2008 at 69 500 t. Ministry reports27 indicate substantial gaps in the resource evaluation and in the catch estimates.

Figure 15. T.capensis biomass from Nansen cruises 1996-2013 (data from INIP) Source: INIP (AB). Note that the biomass estimates from various sources may show inconsistencies which require further interpretation.

27 Como já se tem referenciado nos relatórios de avaliação elaborados nos anos anteriores, em geral continuam a registar-se grandes lacunas no sistema de recolha de informação estatística das espécies de pelágicas. As capturas reportadas a Direcção Nacional de Pesca e Protecção do Recursos (DNPPRP) não são consistentes e são subdeclaradas, não reflectindo a dinâmica do recurso e da frota parâmetros essenciais para aplicação de qualquer modelo de avaliação do recurso (from unauthored report 2007).

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The complexity of the marine physical environment and the ecosystem, the weak information base on stocks, on changes in biomass and the impact of fishing means that there are no reliable models to enable prediction of the horse mackerel biomass. Several hypotheses have been advanced but the available data quality and coverage does not enable robust testing.

8.4.4 Management measures summary Table 11. Projected TACs (POPES) Pelagic species 2006 2007 2008 2009 2010 Horse mackerel 24 000 24 000 24 000 24 000 24 000 Sardinella 168 000 168 000 168 000 168 000 168 000 S. sagax (S. do reino) 0 0 0 0 0 Jack mackerel (cavala) 8 000 8 000 8 000 8 000 8 000 Other pelagics 1 869 1 869 1 869 1 869 1 869

Table 12. State and management of the small pelagics fisheries 2003-2005 Species/ 2003 2004 2005 group Sardinellas S. maderensis (palheta) S. maderensis (palheta) S. maderensis (palheta) underexploited , underexploited , stable underexploited , stable stable biomass, TAC 100 000 t biomass, TAC 100 000 t biomass, TAC 100 000 t S. aurita (lombuda) recovering, TAC S. aurita (lombuda) growth S. aurita (lombuda) 20 000 t overfishing, TAC 20 000 t recovering, TAC 20 000 t

Horse Abundance of large fish of Resource continues to be Resource still overexploited with reduced mackerels commercial interest (>22 cm) overfished with growth biomass. The impact of environmental for consumption in Angola overfishing and high factors unclear. It was recommended to extremely reduced. proportion of juveniles maintain the 2004 management measures Real risk of stock collapse (<20 cm). The large juvenile and TAC and recruitment failure and cohort has a high growth spawning stock depletion. potential and needs to be A reduction in fishing effort protected. Reduction in and a closed season for fishing effort and closed pelagic trawls is season of 1 year for pelagic recommended trawlers. Closed area for Jan- March. A TAC of demersal trawlers of 130S-170 40 000 t is recommended S. A TAC of 40 000 t recommended Sardine Biomass = 0, no fishing Biomass = 0, no fishing Biomass 250 000 t in Baía dos Tigres area. (Sardinha Recommendation 6 licenses and TAC of da África 40 000 t do sul) Source: POPES

Table 13. Projected fleet capacity (POPES) Year Number of seiners 2004 49 2005 49 2006 49 2007 61

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2008 61 2009 61 2010 61

Table 14. Fleet composition in 2012 Small pelagic industrial seiners 26 Finfish trawl 40 Small pelagic sem-industrial seiners 43 Gillnet 7 Deepwater shrimp trawl 20 Shallow water shrimp 3

8.4.5 Key extracts from policy documents Basic laws Lei sobre Recursos Biológicos Aquáticos (Lei 6-A/04) em Outubro de 2004(que substitui a antiga Legislação de Pescas (Lei 20/92); Em 2005 foram aprovados o Regulamento Geral de Pescas (D.R. N°70) e os regulamentos sobre os Direitos de Pesca e Licenciamento (D.R. N°65); Investigação Pesqueira (D.R. N°66).

Angola Medium Term Development (2013-2017) (extract translated) The National Medium Term Development (2013-2017) has long-term strategic framework established by the National Strategy "Angola 2025" laying down the broad guidelines for the development of Angola:

“1. Ensure Unity and National Cohesion; 2. Build a Democratic Society and Participatory, guaranteeing the fundamental rights and freedoms and civil society development; 3. Promote Human Development and Welfare of Angolans, ensuring Quality of Life, Fighting Hunger and Extreme Poverty; 4. Promote Sustainable Development, Competitive and Equitable, ensuring the future generations to come; 5. Promote the Development of Science, Technology and Innovation; 6. Support the Development of Entrepreneurship and the Private Sector; 7. Develop a Harmonious National Territory; 8. Promote Competitive Insertion of Angolan Economy in Global Context and Regional.”

Plano de Ordenamento de Pesca e Aquacultura (POPES) (extract translated) The majority of the measures proposed in the POPES have been applied and are set out in the annual Presidential Decrees. However, due partly to the repeated institutional changes in the Ministry the coordination and evaluation of the measures has been deficient.

Horse Mackerel In the short term (2006): Types of fisheries: artisanal, semi-industrial and industrial: Authorize seine gear only; Maintain the juvenile protection/ closed area (13o-17o15’) and trawl closed area; Maintain the fishing zones as defined in Lei (LRBA); Maintain the closed fishing areas around the ports and bays and define permitted areas beyond 10 miles as a function of vessel length; Minimum mesh size of 60 mm for seiners; Establish the annual quota system in accordance with the TAC with preference for companies with land-based infrastructure for processing and distribution;

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Undertake least two annual research campaigns to evaluate the state of the resource; Introduce logbooks; Install VMS on all vessels over 15 meters; Bycatch composition to be recorded.

In the medium term (2007/2010): Permanently adjust the fishing capacity to sustainable levels of exploitation; Establish mechanisms for communication and control between the commercial fishery and processing, processing and distribution and management; Determine and establish other protected areas and spawning and juvenile; Introduce limits and biological reference points; Conduct socio-economic studies.

Sardinella Short term (2006): As for carapau In the medium term (2007-2010): As for carapau

Sardine (S. sagax) Historically, in 1994 the abundance of this species was estimated at 250 000 tonnes. This high biomass in Angolan waters showed in the high catches reported by the Namibian industry in the border areas between Angola and Namibia. Following the 1995 El Niño, the resource was not present in Angolan waters. In October 2002, the resource showed signs of recovery in Angola and biomass was estimated at 200 000 tonnes. In August 2004, the biomass of this resource in the waters of Angola was estimated at 221 000 tonnes. However, in August 2005 the resource abundance was very low, which did not allow the estimation of biomass.

In the short term (2006) should be introduced precautionary measures and for the 2007-2010 period the following measures should be adopted: introduce methods of fisheries management on ecosystem approach; monitor the behaviour and structure of the resource in Namibia; use closed seasons: - Northern latitudes between 5th 00 ' and 9 0 0 ' latitude in the months April will June; - Central area between parallels 9th 00 ' 0 and 13 ° 0 ' latitude in the months April will June; - Southern area between parallels 13 º 00 ' and 17 1 5 ' latitude in the months June to August.

8.4.6 Summary of the role of the Benguela Current Commission BCC objective The objective of this Convention is to promote a coordinated regional approach to the long-term conservation, protection, rehabilitation, enhancement and sustainable use of the Benguela Current Large Marine Ecosystem, to provide economic, environmental and social benefits.

Article 8 Functions of the Commission a) “agree on, where necessary, conservation and management measures concerning transboundary marine resources and the environment; b) agree, as appropriate, on participatory rights, such as harvest levels and sharing arrangements concerning transboundary fishery resources;

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c) promote, to the greatest extent possible, harmonisation, implementation and enforcement of existing policies and laws pertaining to the conservation and management of transboundary marine resources and environment; d) encourage harmonisation of conservation and management measures concerning marine resources and the environment; e) promote and support research programmes related to the transboundary marine resources and the environment; f) promote the collection, exchange, dissemination and analyses of the relevant data and information, including statistical, biological, environmental and socio-economical; g) promote collaboration on monitoring, control and surveillance, including joint activities in the Southern African Development Community region.”

EAC (a) establish and manage a science programme; and (b) recommend conservation and management measures.

CC Provide the Commission with information, advice and recommendations on the implementation of and compliance with the measures adopted.

8.4.7 Drivers synthesis Table 15. Drivers Drivers/ Characteristics Consultant observations in relation to the carapau/ small pelagics fishery Resource system o Variability ( C, salinity, O2) High Benguela Current system Resilience Low – evidence of physical influence on fish populations Closed-ness Open oceanic system Scale International – weak control Production system Existing fishing capacity relative Unclear to resource base Adaptivity Low – few alternative fisheries Technology level High – not sophisticated but perfectly suited to fishery and the market Scale of operation Company/ industrial/ often vertically integrated Scale of organization Large and concentrated in 3 ports Management institution Balance command-control Largely CC; consultation rather than co-mangement. versus co-management Adaptivity of management Weak due to changes in Ministry, staff capacity and weak information system Cohesion of institutions - shared Institutions in a reconstruction phase following the separation of the Ministry from knowledge, objectives, M. Agriculture. legitimacy of institutions Objectives, plans and legitimacy considered good Knowledge sharing considered poor Knowledge production capacity Small number of well qualified staff overburdened with administrative duties. Bureaucracy needs to be simplified as numerous tasks considered un-necessary or duplicated. MCS capacity Not assessed. Systems in place but requires evaluation and closer coordination with other offices in Ministry

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Drivers/ Characteristics Consultant observations in relation to the carapau/ small pelagics fishery Capacity for conflict resolution Not evaluated. Potential conflict over demersal trawl bycatch and allocation decision making Societal context The role of fisheries in the larger Very important from a social / political standpoint – as high profile in food basket society (population buffer, food, Rent maximization not currently a key objective rent maximization, etc.) Distribution/equity Guidelines established and applied Governance culture Poor transparency Profitability No economic studies done Increased demand Consumption increasing and likely to increase with incomes. International trade Duty free import quota system. System not considered necessary Changes in landings Landings data deficient and data can only be used with considerable caution Decreased input costs Companies complain of high electricity charges and poor power supplies (for processing) Resource rent Not available Access conditions Criteria set out in the law. Open access No Uncertainty Knowledge base (process, High level of uncertainty observation, model) Implementation Weak Institutional Improved communication / knowledge exchange required Improved technology Urgent need of an enhanced fisheries information system Lack of economic alternatives Region dependent (less opportunities in South) Desire for stability Subsidies Fuel subsidy – high cost to government and liely to be removed in medium term Management measures Technical measures Area, mesh, bycatch, gear Input controls Vessel limits Output controls TAC, catch quotas, landings controls, log books Market based Import quotas

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8.4.8 Management scenarios for horse mackerel stock recovery in Angola

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8.4.9 Selected references Abaunza1 P. L et al 2003. Growth and reproduction of horse mackerel, Trachurus trachurus (Carangidae) Reviews in Fish Biology and Fisheries 13: 27–61, 2003. ADRA 2011. Plano Estrategico 2011-2016 Anon, no date. As pescas Angolanas e a construção do futuro. Diagnóstico sumário de situação Anon. 2001. Management Report of the Bio-Economic Modelling Workshop on the Small Pelagic Fisheries Of The West Coast of Peninsular Malaysia. Vistana Hotel, Penang. 12 – 16 February 2001. FAO/Norway Government GCP/INT/648/NOR Cooperative Programme Field Report F-19 (En) Fishcode. FAO, Rome, October 2001 Anon. 2008. Management of shared small pelagic stocks in northwest Africa – results of the symposium “science and the challenge of managing small pelagic fisheries on shared stocks in Northwest Africa”, Casablanca, Morocco, 11-14 march 2008. Fishery Committee for the Eastern Central Atlantic Nineteenth Session. Cotonou, Benin, 4-6 November 2008 Australian Fisheries Management Authority 2009. Small Pelagic Fishery Management Plan BAD, 2013. Angola. Perfil do Sector Privado do País Bishop, J. 2005. Standardising catch and effort in complex fisheries with technology change. J. Fish Biol. Bureau Veritas Certification, 2009. Rapport Preliminaire d’evaluation selon les principes et criteres du msc pour une peche durable pecherie de sardine a la Bolinche De Bretagne Sud. Association Des Bolincheurs De Bretagne Capricorn Fisheries Monitoring. 2012. Benguela Current Large Marine Ecosystem. State of Stocks Review 2012. Castilla, J.C. 2010. Fisheries in Chile: Small Pelagics, Management, Rights, and Sea Zoning. Bulletin of Marine Science 86(2): 221–234, 2010 Cochrane, K.L., Merete Tandstad (eds) 1997. Report of the Workshop on the Small Pelagic Resources of Angola, Congo and .Gabon. FAO Fisheries Report 618 1997

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De Young, C., Hjort, A., Sheridan, S. & Davies, S. 2011. Climate change implications for fisheries of the Benguela Current region – Making the best of change. FAO/Benguela Current Commission Workshop, 1–3 November 2011, Windhoek, Namibia. FAO Fisheries and Aquaculture Proceedings. No. 27. Rome, FAO. 2012. 125 pp. EU. No date. EU proposal for a GFMC recommendation on an MAGP for the small pelagic fisheries in the Southern Adriatic (title abbreviated) Globefish 2013. Small Pelagics - June 2013 IBRD 2013. Doing Business Angola 2013. Inge Albriktsen, Anneli Andersson, Staffan Larsson, Team leader Maria de Lourdes Sardinha, 2007. Review of the Norwegian Assistance to the Fishery Sector in Angola. NORAD Collected Reviews 32 /2007 Instituto Nacional de Estatística (INE), Inquérito Integrado sobre o Bem Estar da População. (IBEP), 2008-09 IPA, 2013. Controlo Estatístico das Capturas e Esforço de Pesca Artesanal Marítima e Continental. Relatório Técnico nº17. Ano 2012 IRD, 2008. Adaptive management in pelagic fisheries. Ministère de l’Agriculture et de la Pêche Maritime. Stratégie de développement et de compétitivité du secteur halieutique. Royaume de Maroc. Ministrio das Pescas . 2005. Plano de Ordenamento de Pescas e Aquicultura 2006/2010 Moroff, N. & Vaino Shigwedha. Results of pelagic transboundary surveys between northern Namibia and southern Angola (2008-2012) Powerpoint. Mukumangeni, R. 2006. The Namibian horse mackerel fishery: juveniles or adults? UNU, Final Project 2006 Prost, E.A., & Catherine Prost, 2010. A identidade cultural e a organização sócio-econômica dos Marisqueiros no Angolá. Itabaiana: GEPIADDE, Ano 4, Volume 8 | jul-dez de 2010. Sætersdal, G.; Bianchi, G.; Strømme, T.; Venema, S.C. 1999. The DR. FRIDTJOF NANSEN Programme 1975–1993. Investigations of fishery resources in developing countries. History of the programme and review of results. FAO Fisheries Technical Paper. No. 391. Rome, FAO. 1999. 434p Sherman K, and Galen McGovern, 2012. Frontline Observations on Climate Change and Sustainability of Large Marine Ecosystems. GEF Secretariat Global Environment Facility June 2012 Silva A., et al. 2006. Temporal and geographic variability of sardine maturity at length in the northeastern Atlantic and the western Mediterranean ICES Journal of Marine Science, 63: 663e676 (2006). SCICOM Steering Group on Ecosystem Surveys Science and Technology. 2012. Report of the Working Group on Mackerel and Horse Mackerel Egg Surveys (WGMEGS). ICES WGMEGS Report 2012. 18-21 April 2012. Galway, Ireland Vaz Velho, F., Barros, P., and Axelsen, B. E. 2010. Day–night differences in Cunene horse mackerel (Trachurus trecae) acoustic relative densities off Angola. – ICES Journal of Marine Science, 67: 1004–1009.T

Selected laws and regulations Decreto 43/05 of 20 June [MCS regulation] Decreto Executivo n.º 159/06 de 26 de Dezembro [Technical measures] Decreto n.º 47/05 de 18 de Julho. [INIP statutes] Decreto-Lei n.º 5/03 [Organisation of the Ministry]

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Diploma: Lei dos Recursos Biológicos Aquáticos (Nova Lei das Pescas) . Número: 6-A Data: 08/10/2004 Ministério das Finanças. Decreto Executivo n.º 212/13. [sumário: Determina que o fornecimento de gasóleo destinado as actividades de pesca, artesanal, semi-industrial e industrial é feito ao preço ex-Distribuição, da tabela de preços dos derivados de petróleo que estiver em vigor]. Ministério das Pescas, 2013. Despacho n.º 1721/13. [sumário: Cria o Grupo Técnico para o Desenvolvimento de um Plano de Gestão Transfronteiriço para o Carapau coordenado pela Directora Nacional de Pescas e Protecção dos Recursos Pesqueiros.]. Ministério das Pescas. Decreto Executivo n.º 28/06. [sumário: Aprova o regulamento interno da Direcção Nacional de Pescas e Protecção dos Recursos Pesqueiros]. Ministério das Pescas. Decreto Executivo n.º 33/98. [sumário: Regulamenta a gestão dos recursos pesqueiros existentes nas águas jurisdicionais de Angola]. Ministério das Pescas. Decreto Executivo n.º 48/98. [sumário: Regulamenta a gestão dos recursos pesqueiros existentes nas águas jurisdicionais].

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