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Some Suggested Management Initiatives in Palau's Nearshore Fisheries, and the Relevance of Traditional Management

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Some Suggested Management Initiatives in Palau's Nearshore Fisheries, and the Relevance of Traditional Management Inshore Fisheries Research Project Country Assignment Report SOME SUGGESTED MANAGEMENT INITIATIVES IN PALAU'S NEARSHORE FISHERIES, AND THE RELEVANCE OF TRADITIONAL MANAGEMENT South Pacific Commission Noumea, New Caledonia SOME SUGGESTED MANAGEMENT INITIATIVES IN PALAU'S NEARSHORE FISHERIES, AND THE RELEVANCE OF TRADITIONAL MANAGEMENT R.E. Johannes CSIRO Division of Fisheries Hobart, Australia August, 1991 ACKNOWLEDGEMENTS My thanks to the many Palauan fishermen who patiently explained their views on fisheries management problems to me and proposed and discussed various alternatives for dealing with them. I was also greatly helped by a number of Palau government personnel, including David Idip, Director, Bureau of Resources and Development Noah Idechong, Chief, Marine Resources Division Ann Kitalong, Fisheries Biologist, Marine Resources Division Gerry Heslinga, Manager, Micronesian Mariculture Demonstration Center Nancy Wong, Chairman, Palau Fishing Authority Demei Otobed, Chief Conservationist Despite a very busy schedule Noah Idechong was very generous with his time in facilitating my work and explaining the many changes in Palauan inshore fisheries that had occured since my last visit to Palau. Ann Kitalong provided much useful information and feedback. The entire staff of the Marine Resources Division was unfailingly hospitable and efficiently supportive. April Olkeriil ably interpreted during many of my discussions with fishermen. TABLE OF CONTENTS INTRODUCTION 5 METHODS 6 RESULTS AND OBSERVATIONS 7 Fishermen's Concerns about Marine Resources 7 New Laws Recommended by Fishermen 1 1 Fishermen's Suggestions Concerning Enforcement 13 Marine Resource Management in Palau: History and Present Status 1 4 - History of Traditional Management 1 4 - Current Status of Traditional Management 1 5 - National Government Regulations 1 6 - State Government Regulations 1 7 DISCUSSION AND CONCLUSIONS 1 8 Improving the Enforcement of Marine Conservation Laws 1 8 - The Role of Traditional Authority 1 8 - The Role of State Governments 2 0 - The Role of the National Government 21 - The Need for New Laws 21 - Enforcement on the Fishing Grounds vs Points of Sale 2 2 - Support of Traditional Authority 23 - Enforcement by Fishermen 24 Suggested New Fisheries Regulations 28 - Groupers 28 - Rabbitfish 3 0 - Fishing on Spawning Aggregations of Other Species 31 - Net Mesh Size 31 - Spearfishing Using SCUBA 31 - Mangrove Crabs 3 2 - Rock Lobsters 3 2 - Commercial Export of Crabs and Lobsters" 33 - Size Limits on Fish 3 3 Miscellaneous Recommendations 33 - Training of Customs Inspectors 33 - State Legislation 34 - Education 34 - DMR and Enforcement 3 5 - Fishing Rights Boundary Disputes 35 - Impacts of Foreign Workers 3 5 SUMMARY OF RECOMMENDATIONS 3 6 REFERENCES CITED 3 8 INTRODUCTION In early 1991 the Palau Division of Marine Resources requested assistance from the South Pacific Commission in exploring inshore, small-scale fishermen's concerns with regard to their fisheries, as well as the relevance today of traditional marine resource management. In response to this request CSIRO marine biologist R.E. Johannes spent the month of July, 1991 in Palau The terms of reference were: a) to examine inshore fisheries and resource management problems, especially as seen by fishermen. b) to examine social and institutional mechanisms for improving fisheries management, with particular emphasis on the value today of traditional Palauan management measures. c) to assist in the formulation of a program to guide inshore marine resource management and the drafting of associated legislation A draft report was prepared during the visit. This provided a basis for discussions with DMR and SPC which led to many of the revisions made in this final version. A more extended description of Palau's traditional system of customary marine tenure, the substantial changes it has undergone in the 20th century, and its relevance to contemporary marine resource management will be prepared separately. Description of Palau's Nearshore Fisheries A detailed description of Palau's inshore fisheries seems unnecessary here, since they have been described many times elsewhere. The essential features are: 1. many reef and lagoon species and a few nearshore pelagics are involved, 2. many different low technology methods are used, 3. the catch may go through any one of innumerable rural distribution channels throughout Palau, or commercial or subsistence channels in the urban center, Koror. Buyers or receivers range from families and individual restaurants to private fish dealers to the government- supported Palau Federation of Fishing Associations. Reef gleaning for various invertebrates including clams, sea urchins and sea cucumbers is carried out mainly by women and children. Since a survey is currently underway to determine the nature and significance of these activities I will not deal with them here. The total seafood catch, estimated by Preston (1990) at about 1,700 tonnes per year, is very small by world standards. The costs of comprehensive monitoring and management for such a small yet complex fishery would greatly outweigh the economic benefits. Costs would probably also be well out of proportion even to the substantial social benefits in Palau, although the latter are not readily measured. In such circumstances a fisheries manager aims not for some management ideal like maximum sustained yield, but rather simply to prevent serious overfishing, to ensure reasonably satisfactory allocation of resources and to minimize conflict. The majority of Palauan fishermen I talked with said that their standard of living has been going up during the past few years because of increased overseas demand for their catch and associated rises in prices. Many fishermen now have cars or trucks, as well as bigger boats and motors than they did ten years ago. However, since at least the mid-1970s they have been concerned about a perceived dwindling in numbers of many species of food fish on their fishing grounds, as well as about poaching and destructive fishing practices (e.g. Johannes 1981). METHODS I held meetings with groups of fishermen in the following villages, Ngeremetengel (Ngeremle-ngui State); Ollei (Ngcherelong State), Aimeliik Village (Aimeliik State), Ngiwal Village (Ngiwal State), Peleliu Village (Peleliu State). In Koror I had similar discussions with fishermen individually or in groups from a number of states (Koror, Aimeliik, Ngatpang, Ncherelong, Ngeremlengui, Peleliu), as well as High Chief, Ibedul Yutaka Gibbons, a number of members of the Koror State and National Legislatures, and with various other individuals who were knowledgeable about or concerned over inshore fisheries management issues, including: Franny Reklai, Manager, Palau Fishing Authority; Marhence Madranchar, Director, Environmental Quality Protection Board; Tamara Gabel, Staff Attorney, Environmental Quality Protection Board; Victorio Uherbelau, Director, Bureau of Foreign Affairs; Mark Horlings, Attorney General. Finally, after the above discussions were completed, a meeting in Koror was organized by the Palau Federation of Fishing Associations, to which fishermen were invited from throughout Palau in order to discuss management issues further with Noah Idechong and me. During these various discussions I sought information and opinion in four basic subject areas: 1. what fishermen considered to be the most important marine resource conservation problems. 2. how well existing traditional rules and government laws that address these problems have been working in recent years, 3. what new laws seemed desirable, and, 4. what mechanisms seem most practical for improving the enforcement of marine conservation laws and the observance of relevant traditional customs. Since time did not permit interviewing all fishermen individually it is not possible to analyze their responses quantitatively. I will thus focus mainly on issues concerning which there was a clear consensus during our discussions. Opinions and observations gathered from these meeting were compared with those recorded in extensive field notes made over 16 months in the mid-1970s during which I interviewed fishermen throughout Palau. I was unable to visit the South West Islands during this trip because of the time and distance involved. Undoubtedly their inshore fisheries conservation needs are quite different and perhaps less pressing than those of Palau proper. RESULTS AND OBSERVATIONS A. Fishermen's Concerns About Marine Resources Improved design and enforcement of marine conservation laws strongly dominated the 198 responses of Palauan fishermen in a survey of their concerns conducted by Paul Gates in 1988, (Gates, in prep, and pers. comm.). The responses I obtained in 1991 were similar except that two problems - dynamiting and uncontrolled inshore fishing by foreigners - had been significantly reduced by various goverment actions since Gate's survey and this was reflected in the lesser emphasis given to these problems in 1991. (Dynamiting was still possibly a significant problem in Peleliu state although time did not permit investigating conflicting claims here.) There was general agreement that neither the use of dynamite nor chlorine had been a significant problem north of Koror for some years and that in the south the use of chlorine in combination with kesokes nets in Peleliu was the only instance where it was widely claimed to remain a significant problem (although a number of Peleliu fishermen said this was not the case). There was general agreement
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