Fisheries and Aquaculture Policy of The Gambia

Fisheries-and-Aquaculture-Policy-2018(1).pdf 1 Government of The Gambia Ministry of Fisheries, Water Resources and National Assembly Matters Department of Fisheries Fisheries and Aquaculture Policy of The Gambia January 2018 Table of Contents 2 Acronyms and Abbreviations iv Acknowledgement vi List of Tables vii 1.0. Background 1 1.1. Evolution of Fisheries Policy in The Gambia 1 2.0. Participatory Definition of Terms, Policy Area Development/Alignment and Policy Goal Setting……………………………………………………………………………………………..17 2.1. Participatory Definition of Terms 17 2.2. Policy Area Development and Alignment 17 2.2.3. Reconciling Policy Areas of the Draft Policy 2017 and the Policy Areas of PFRS in Africa 18 2.3. Policy Goal Setting 19 2.3.1. Key Issues Considered in Policy Goal Setting 19 3.0. Introduction 21 3.1. Justification for Fisheries Policy 21 3.2. Arrangement of the Policy for Fisheries and Aquaculture of The Gambia 2018 21 4.0. Policy Goal and Policy Areas 23 4.1. Policy Goal 23 4.2. Policy Areas 23 4.2.1. Policy Area 1. Conservation and Sustainable Resource Use 23 4.2.1.1. Policy Area Objective 23 4.2.1.2. Policy Objective Outcomes 23 4.2.1.3. Monitoring Indicators 24 4.2.2. Policy Area 2. Sustainable Marine Small-Scale Fisheries (SSF) Management 26 4.2.2.1. Policy Area Objectives 26 4.2.2.2. Policy Area Outcomes 26 4.2.2.3. Monitoring Indicators 27 4.2.3. Policy Area 3. Sustainable Aquaculture and Inland Fisheries Development 31 4.2.3.1. Policy Area Objective 32 4.2.3.2. Policy Area Outcome 32 4.2.3.3. Monitoring Indicators 33 4.2.4. Policy Area 4. Competitive Fish Trade and Marketing 38 4.2.4.1. Policy Area Objectives 38 4.2.4.2. Policy Area Outcome 39 4.2.4.3. Monitoring Indicators 40 4.2.5. Policy Area 5. Sustainable Industrial Fisheries and Fisheries on the High Seas 43 4.2.5.1. Policy Area Objectives 43 4.2.5.2. Policy Area Outcome 44 3 4.2.5.3. Monitoring Indicators 45 4.2.6. Policy Area 6: Sub-Regional, Regional and International Cooperation 50 4.2.6.1. Policy Objective: 50 4.2.6.2. Policy Outcome 50 4.2.6.3. Monitoring Indicator 51 4.2.7. Policy Area 7: Human Capital Development in Fisheries and Aquaculture 55 4.2.7.1. Policy Objective 55 4.2.7.2. Policy Outcome 55 4.2.7.3. Monitoring Indicators 56 4.2.8. Policy Area 8. Food Fish and Nutrition Security 59 4.2.8.1. Policy Objective 59 4.2.8.2. Policy Outcomes 59 4.2.8.3. Monitoring Indicators 60 4.2.9. Policy Area 9. Institutional Reform and Inter-Sectoral Linkages 63 4.2.9.1. Policy Objectives 63 4.2.9.2. Policy Outcomes 63 4.2.9.3. Monitoring Indicators 63 4.2.10. Policy Area 10. Sport Fishing 65 4.2.10.1. Policy Objective 65 4.2.10.2. Policy Outcomes 65 4.2.10.3. Monitoring Indicators 65 4.2.11. Policy Area 11. Cross-Cutting Issues in the Fisheries and Aquaculture of The Gambia 68 4.2.11.1. Policy Objective 68 4.2.11.2. Police Area Outcome 68 4.2.11.3. Monitoring Indicators 69 5.0. Principles 73 5.1. Substantial Principles and Values 73 5.2. Procedural Principles and Values 74 Acronyms and Abbreviations AFAOR-P Assistant Food and Agriculture Organisation Representative-Programmes CBOs Communality Based Organisations CCA Climate Change Adaptation CCRF Code of Conduct for Responsible Fisheries DWFN Distant Water Fishing Nations DRM Disaster and Risk Management EAA Ecosystem Approach to Aquaculture 4 EAF Ecosystem Approach to Fisheries ECOWAS Economic Community for West African States EEZ Economic Exclusion Zone ERP Economic Recovery Programmes ESHIA Environmental Social and Health Impact Assessment FAO Food and Agriculture Organisation of the United Nations FFF Freetown Fisheries Framework FIRST Food and Nutrition Security Impact, Resilience, Sustainability and Transformation FSQ Food Safety and Quality GATT General Agreement on Tariffs and Trade GOTG Government of The Gambia IBP International Best Practice IEZ Inshore Exclusion Zone IPOA Integrated Policy and Legal Analysis IUU Illegal Unregulated Unreported LME Large Marine Ecosystem MCS Monitoring Control and Surveillance MPA Marine Protected Areas MTP Medium Term Plan NAAFO National Association of Artisanal Fisheries Organisations NaNa National Nutrition Authority NDP National Development Plan PFRS Policy Framework and Reform Strategy PSD Programme for Sustained Development PSMA Port State Measures Agreement RECs Regional Economic Commissions RFBs Regional Fisheries Bodies RFMO Regional Fisheries Management Organisations SPS Sanitary and Phytosanitary SRFC Sub-Regional Fisheries Commission SSSF Voluntary Guidelines for Securing Sustainable Small-Scale Fisheries in the Context of Food Security and Poverty Eradication SWOT Strengths Weaknesses Opportunities and Threats TURFs Territorial Use Rights in Fisheries UNCLOS United Nations Convention on the Law of the Seas UNDP United Nations Development Programme UNFSA United Nations Fish Stock Assessment VGGT Voluntary Guidelines on the Responsible Governance of Tenure of Land, Fisheries and Forests in the Context of National Food Security VMS Vessel Monitoring System WEF World Economic Forum WTO World Trade Organisation 5 Acknowledgement 6 List of Tables Table 1. Integrated Policy and Legal Analysis (IPOA) of Fisheries and Aquaculture Policy of The Gambia with Respect to Food and Nutrition Security – A Simple Score Card 8 Table 2. SWOT Analysis of Fisheries and Aquaculture of The Gambia 10 Table 3. Freetown Fisheries Framework Results for The Gambia Fisheries and Aquaculture Development Prospect Assessment 13 Table 4. Policy Areas of the Draft Policy for Fisheries and Aquaculture of The Gambia 2017 and that of PFRS in Africa 18 Table 5. Policy Areas for Fisheries and Aquaculture Policy of The Gambia 2018 19 Table 6. Policy Area 1. Conservation and Sustainable Resource Use 26 Table 7. Policy Area 2. Sustainable Small-Scale (SSF) Fisheries Management 31 Table 8. Policy Area 3. Sustainable Aquaculture and Inland Fisheries Development 38 Table 9. Policy Area 4. Competitive Fish Trade and Marketing 44 Table 10. Policy Area 5. Sustainable Industrial Fisheries and Fisheries on the High Seas 51 Table 11. Policy Area 6: Sub-Regional, Regional and International Cooperation 57 Table 12. Policy Area 7: Human Capital Development in Fisheries and Aquaculture 62 Table 13. Policy Area 8: Food Fish and Nutrition Security 67 Table 14. Policy Area 9. Institutional Reform and Inter-Sectoral Linkages 70 Table 15. Policy Area 10. Sport Fishing 72 Table 16. Policy Area 11. Cross-Cutting Issues in the Fisheries of The Gambia 76 7 1.0. Background 1.1. Evolution of Fisheries Policy in The Gambia The development of fisheries policy documentation in The Gambia could be traced from the semblance of policy statements made at the time of the establishment of the Department of Fisheries in the 1960s culminating over more than half a century in this Fisheries and Aquaculture Policy of the Gambia of 2018. 1.1.1. The Fisheries Policy in National Development Plans/Development Programmes Successive national development plans over the course of 10 years (1975-1980 & 1980-1985) defined fisheries policy objectives for directing intercessions in the fisheries sector which were subjected to review as part of the Economic Recovery Programmes (ERP), 1985−1989 and the succeeding Programme for Sustained Development (PSD) of the 1990’s. Despite the lack of verifiable actions developed to achieve the stated objectives, the following indicated “to do/s” could be summarised below:- 9 to improve the institutional capacity for the management of the fisheries sector 9 to improve the legal framework governing the fisheries sector 9 to regulate industrial fishing with a view to making output consistent with a rational and sustainable approach to production 9 to develop and expand small scale fishing and increase Gambian, especially female, participation in the sector 9 to develop aquaculture 9 to improve the economic environment surrounding the fisheries sector with a view to enhancing the sector’s contribution to the national economy. The so-called objectives neither had any linkage to an overarching goal wherein, the objectives could now become concrete steps towards the desired state of affairs nor were follow-up strategic actions developed and implemented in a coordinated manner. 1.1.2. The Fisheries Policy Revision of 1994 It is therefore not surprising that once the potential of the fisheries sector to make significant contribution to societal wellbeing became more apparent, the aforementioned policy objectives were subjected to revision in 1994 during the process of developing The Gambia Fisheries Strategic Plan 1994-2004. The Strategic Plan followed recommended prudent management, rational and sustainable production methods and efficient utilization of existing fish stocks. The revised national policy objectives for the development of the fisheries sector were as follows: 9 to promote the rational and long-term utilization of fisheries resources 9 to improve the nutritional standards of the population; 8 9 to increase employment opportunities in the sector; 9 to increase the net foreign exchange earnings from fisheries; 9 to expand Gambian participation in the sector; But as Conner Baily and Svein Jentoft1 had shown more than two decades ago, the frequent practice of justifying projects on the basis of goals with the inclination of being mutually antagonistic, failed to recognise the necessity of making hard choices which are fundamentally moral and political rather than economic and technical. For example, choices between increasing exports and increasing domestic fish supply/nutrition; rationally raising producer’s incomes and expanding employment opportunities in a fishery. Whilst it could be argued that for e.g. export for foreign exchange earnings and increased domestic fish supply objectives need not necessarily be mutually exclusive under dual operations circumstances as in artisanal and industrial operations in the fisheries sector, the choices remain difficult. Otherwise, if it were not so, 1 in every 4 infants under five years old should not be stunted today in The Gambia2 given the nutrition security policy prescription since the 1990s and the endowment of aquatic food resources. This reaffirms the sticky moral and political dimensions of policy choices which this review brings to the fore. 1.1.3. The Fisheries Policy 2007 The Fisheries Policy of 2007 is regarded as the first detailed policy document that went through a wide range of consultation that prescribed the following policy objectives gaining official Government adoption: 9 to effect a rational and long-term utilization of the marine and inland fisheries resources; 9 to use fish as a means of improving nutritional standards of the population; 9 to increase employment opportunities in the sector; 9 to increase the net foreign exchange earnings; 9 to increase and expand the participation of Gambians in the fisheries sector ; 9 to develop aquaculture; 9 to improve institutional linkages with other relevant sectors; 9 to improve the institutional capacity and legal framework for the management of the fisheries sector; 9 to strengthen regional and international collaboration in the sustainable exploitation, management and conservation of shared stocks and shared water bodies, promote bio- diversity maintenance and enhancement and prevent environmental degradation. A noteworthy aspect of the 2007 policy document which is still valid today; is the explicit recognition from the outset that healthy fish stocks managed from a responsible fisheries 1 Baily, C and Jentoft, S. (1990). Hard Choices in Fisheries Development; Marine Policy, 14 (4), 333-344 2 Human Development Report 2016 (UNDP) 9 approach is indispensable for a sustained development of the sector and the economic benefits derived therefrom as well as the wellbeing of stakeholders. Policy also targeted inland operators in the area of financial assistance for the procurement of fishing gears and ancillaries services. Policy development and implementation was rightly contextualised in a number of useful guiding principles such as: i. Conservation and sustainable resource use; ii. Global Responsibility; iii. Responsible Fisheries management; iv. Collective Decision Making. The Policy document also threw light on a number of resource management issues which should be improve upon such as: Marine Artisanal Fisheries, Monitoring Control and Surveillance (MCS), Access to Financial Resources, Fisheries Research, Human Resource Development, Inland Fisheries and Aquaculture, Inter-sectoral linkages, Gender, Youths and Fisheries Sector Development, Institutional Reforms, Fisheries Extension, Industrial Fisheries, Post-Harvest and Quality Control, Fish Marketing, Sub-regional and International Cooperation and Sport Fishing. However, the document did not adequately and comprehensively articulate outcomes anticipated from this wide ranging and uncoordinated shopping list of fisheries management issues to be confronted and what monitoring mechanisms must be put in place to evaluate progress. The observable missing link from the policy objectives to specific strategic actions/projects on the ground3 for taking concrete steps towards the stated objectives had the propensity to render implementation redundant. 1.1.4. Draft Fisheries Policy of The Gambia 2017 This is the basis of the current review that will result into this Fisheries and Aquaculture Policy of The Gambia 2018. A detailed and properly sequenced document covering most of the contemporary issues in fisheries governance and management. Policy issues categorised into policy areas accompanied by objectives in a systematic manner. An overarching sector goal is given towards which efforts in achieving objectives of policy areas would gravitate. The still valid guiding principles from the previous policy of 2007 are maintained. The development of draft policy 2017 under review could be traced from collaboration between the Government of The Gambia and the United Nations Development Programme (UNDP) for the finalisation of the Medium Term Plan (MTP) in the Context of Vision 2020 - socio-economic development strategy for the period 1996-2020. During this process, the rational exploitation and utilization of the country’s natural resources, including fisheries in a manner consistent with the overall goal of sustainable development goals was emphasised. Consequently, the sectoral study on fishing and marine resources development was commissioned which outlined the physical, technical, economic, institutional and social constraints in the fisheries sector including the development objectives, management measures and strategies to be implemented for the period 2005 - 2009. It became crucial that a fisheries policy be prepared to reflect present realities, address the needs and demands of responsible fisheries exploitation and utilization in tune with resources management and conservation while 3 See The Gambia Strategic Plan for the Fisheries Sector 2009-2013 10 incorporating the principles of the Code of Conduct for Responsible Fisheries (CCRF) and other emerging trends in fisheries management. The policy document dealt with the following areas: 9 Background describing; (i) Characteristics of the fisheries sector (ii) Fisheries resources (iii) Industrial Fishery (iv) Artisanal Fishery (v) Inland Fisheries and Aquaculture (vi) Processing and Marketing (vii) Monitoring, Control and Surveillance (MCS) (viii) Donor intervention in fisheries (ix) Fisheries management (x) Fisheries Institutions, Associations and NGOs 9 National fisheries sector goals and objectives 9 Guiding principles for fisheries management 9 Fisheries policy areas and implementation strategies However, the stifled political environment was never conducive at the national level for unfettered policy development owing to the heavy-handed governance system under the previous regime. This did not allow the sort of freedom required to deliberate on emerging global policy issues which demanded that the inherent dignity and the equal and inalienable human rights of all individuals are recognised and respected under the rule of law. This is so because, an examination of the status of fundamental human right treaties4 revealed that the following treaties are yet to be ratified by The Gambia: 9 CAT: Convention against Torture and Other Cruel, Inhuman or Degrading Treatment or Punishment, 1984 (Entry into force: 26 June 1987) 9 ICMW: International Convention on the Protection of the Rights of All Migrant Workers and Members of Their Families, 1990 (Entry into force: 1 July 2003) 9 CRC-AC: Optional Protocol to the Convention on the Rights of the Child on the involvement of children in armed conflict, 2000 (Entry into force: 12 February 2002) 9 ICPED: International Convention for the Protection of All Persons from Enforced Disappearance, 2006 It is therefore not unexpected that the policy framework has not been aligned to human rights sensitive FAO’s Voluntary Guidelines on the Responsible Governance of Tenure of Land, Fisheries and Forests in the Context of National Food Security (VGGT) and the Voluntary Guidelines for Securing Sustainable Small-Scale Fisheries in the Context of Food Security and Poverty Eradication (SSSF). A glaring example of how a foul political climate would jeopardise policy implementation is the case of the abrupt dismissal of a chunk of senior Department of Fisheries Officers under unexplained circumstances. This meant that Vessel Monitoring System (VMS) Project under implementation (supported by the Sub-Regional Fisheries Commission (SRFC)) was abandoned thereby thwarting the fight against IUU fishing. Moreover, the policy document had not taken into account, the African Union’s Policy Framework and Reform Strategy (PFRS) for Fisheries and Aquaculture in Africa and the prescribed plan of action for both capture fisheries and aquaculture. Cross-cutting issues like climate change, disaster risk 4 Human Development Report 2016 (UNDP) 11 management require a more detailed treatment. As pertinent as the 16 policy areas suggested by the draft policy may be, the many policy areas may affect the much needed focus in implementation. Policy areas could be streamlined into key areas which would enhance focusing on activities which will make tangible contribution to the National Development Plan (2018- 2021). The draft policy document itself attempted to develop strategies notwithstanding a separate document dealing with policy objectives implementation strategy5. This is a recipe for confusion signalling cumbersome implementation outcomes which should be avoided. As indicated in the next Sub-section, Food and Nutrition Security of The Gambian population requires urgent attention which this policy document embraces but was not adequately considered in the draft policy of 2017. Also important for this policy review, is donor interest in investing in the fisheries sector following the peaceful resolution of the recent political impasse. The West African Regional Fisheries Programme supported by the World Bank is poised to extend investment to The Gambian fisheries in the thematic areas of Good governance; Reduction of illegal fishing and Local value addition - following ongoing projects in many countries in the sub-region. Policy environment that accommodates such objectives would enhance smooth project implementation and optimises benefits derivable form the project interventions. 1.1.5. Title: Fisheries and Aquaculture Policy of The Gambia (2018) 1.1.5.1. Policy Review Requester This policy review was sought by the Food and Nutrition Security Impact, Resilience, Sustainability and Transformation (FIRST) Project - GCP/INT/244/EC (commissioned by FAO under Strategic Objectives No. 1: Contributing to the eradication of hunger, food insecurity and malnutrition) in order to assess the contribution of National Policy of Fisheries and Aquaculture to Food and Nutrition Security of the populations of ECOWAS member states. The consultation set out to conduct a review study and analyse The Gambia policy and strategy of fisheries and aquaculture to assess the sector's strengths, opportunities, weaknesses and gaps in its contribution to the food and nutritional security of local populations. Once the policy for fisheries and aquaculture in The Gambia is updated with clear policy objectives, outcomes and monitoring indicators for food fish and nutrition security, a separate document – the strategy; will be developed to operationalise the stated objectives and expected outcomes. The work undertaken for the documentation of this policy framework report involved extensive desk review of fisheries sector development and management documents on The Gambia and individual expert consultation before embarking on a consultative working workshop with key experts in the food production and utilisation industry across the country. As explained further in sub-section 1.1.5.3; during these meetings, a wide range of concepts concerning fisheries policy development as they relate to food and nutrition security were discussed and stakeholders made useful contribution. These exercises provided the background information for this policy report. The consultation activity is undertaken in the framework of the process of the regional political dialogue for the elaboration of ECOWAS integrated and coordinated regional fisheries and aquaculture Policy. In order to give effective support to this process, it was necessary to examine first the existing national fisheries and aquaculture policies in the countries of the Region. The essence is to identify the challenges and opportunities at national level that could contribute to 5 Draft Fisheries and Aquaculture Strategy for The Gambia (2017-2021) 12 the regional dialogue but also to facilitate the implementation of the ECOWAS' future Regional Fisheries and Aquaculture Policy in the Member States. 1.1.5.2. Objectives The general objective of the study is to conduct a review study and analyse The Gambia policy and strategy of fisheries and aquaculture to assess the sector's strengths, opportunities, weaknesses and gaps in its contribution to the food and nutritional security of local populations. Specifically, the national consultation will, in close collaboration with the AFAOR-P and/or Country Programme Officer: 1. Review and improve the Fisheries and Aquaculture Strategy 2017-2021 by conducting a review-analysis of national fisheries and aquaculture policy documents and strategies, including: x Specific analysis of strengths, weaknesses, opportunities and threats/risks (SWOT analysis) as well as institutional analysis. This was done through the review of project/program development strategies and public or private investment plans in the sector. x Analysis of national coordination mechanisms and inter-sectoral and multi- stakeholder dialogue in the fisheries and aquaculture sector with other sectors involved in the policies and strategies to combat food and nutrition insecurity in the country. 2. Organize and technically lead a one-day stakeholder workshop in which the food and nutrition security issues are discussed are mainstreamed in the policy document before developing a strategy to operationalise the agreed policy prescriptions. 3. Analysis and assessment of the contribution of fisheries and aquaculture to the four dimensions of food security (Availability, Accessibility, Utilisation and Stability) through available official data and information collected from stakeholders: 1.1.5.3. Policy Review and Reform Assessment Methods Consequently, as mentioned earlier, a working workshop involving senior officers and practitioners from a wide range of institutions in the fisheries and food and nutrition security sector was held at Senegambia, The Gambia; on the 18th January 2018 during which participatory policy review and reform assessment was conducted. A number of assessment tools were used to conduct situational analysis of the fisheries and aquaculture sector of The Gambia. Firstly, Integrated Policy and Legal Analysis (IPOA) framework was used to query the adequacy of the policy environment in the fisheries and aquaculture sector to ensure food fish and nutrition security for The Gambia population. Secondly, Strength – Weakness – Opportunity - Threat (SWOT) analytical method was used to put challenges and opportunities into focus and the Freetown Fisheries Framework (FFF)6 assessed the development prospects of The Gambia 6 Neiland, A.E., Cunningham, S., Arbuckle, M., Baio, A., Bostock, T., Coulibaly, D., Gitonga, N.K., Long, R. and Sei, S. (2016) Assessing the Potential Contribution of Fisheries to Economic Development - The Case of Post-Ebola Sierra Leone. Natural Resources, 7, 356-376. 13 Fisheries and Aquaculture. All of the aforementioned analyses were done during the stakeholders working workshop in additional to the field observational research during the consultant’s 2 weeks field study. Other issues considered involved comparing the policy areas suggested by the 2017 draft policy and that of the Policy Framework and Reform Strategy in Africa prescribed by the AU. The workshop upon analysis produced resultant policy areas which now constitute the policy areas for this policy. The gathering also agreed on a common frame of reference for definitions of terms used during the participatory policy development which culminated into developing an overall policy goal for The Gambia Fisheries and Aquaculture sector. Policy objectives and issues therein for food and nutrition security were also discussed in detail. In this way, practitioners in the food and nutrition security of The Gambia did not only firmly understand the policy development process, but they are now confident about their contribution to the policy emerging therefrom which enhances ownership and eventual implementation. The draft policy 2017 query conducted using IPOA asks a total of 10 straightforward questions in 10 specific areas outlined in Table 1. This simple but effective analytical tool was developed by a team of NEPAD Governance Working Group of experts during a legal, policy and strategy development (for fisheries and aquaculture) mission spanning six months in The Gambia. The framework was adapted here to determine the adequacy of provisions in the draft policy of 2017 and capacity/capability of institutions in providing food fish and nutrition security in the Gambia. In the process, score are awarded to give an idea of a current situation (areas of strength and weaknesses) and a would-be improved situation after policy review and successful implementation. In our SWOT analysis, advantages and challenges inherent in the fisheries and aquaculture sector constitutes the strengths and weaknesses respectively. Conversely, advantages and challenges that are external or outside the immediate influence of the fisheries and aquaculture sector constitutes the opportunities and threats respectively. Participants showed a good grasp of the prevailing issues in the sector as they contributed salient factors recorded in Table 2. The FFF in assessing the prospects for development of the fisheries and aquaculture sector also asks 10 succinct questions specified in Table 3 - the answers to which scores were given out of a maximum of 10 marks for each question were summed up to give an % indication of development prospects. 1.1.5.4. Results 1.1.5.4.1. IPOA Analysis The results of the rapid query of the Draft Policy for Fisheries and Aquaculture of The Gambia – 2017 with respect to food fish and nutrition security is presented in Table 1. Table 1. Integrated Policy and Legal Analysis (IPOA) of Fisheries and Aquaculture Policy of The Gambia with Respect to Food and Nutrition Security – A Simple Score Card Key Question Current score Reform Score Comment on priority reform areas POLICY CONTENT 1. CONTEXT AND ISSUES: What are the national and international context, and the key issues, opportunities and challenges? (sectoral and non-sectoral) 3/5 4/5 Key issues identified. NaNa policy under review; Food Act 2010, Draft FSQ Policy, FSQ Act 2011; Food Safety Authority - articulated priority areas cognizance of international best practices as in Article 20 of the General Agreement on Tariffs and Trade (GATT); The WTO Agreement on the Application of Sanitary and Phytosanitary Measures (SPS Agreement); The decision of the ECOWAS Regional Committee of Legal and Judicial/ Agriculture Experts for the Alignment of the Harmonized Sanitary and Phyto-sanitary Standards (SPS) Regulations; The Joint FAO/WHO Publication “Assuring Food Safety and Quality: Guidelines for Strengthening National Food Control Systems. 2. NATIONAL GOALS: What are the national goals defined by government in general, and the relationship to fisheries policy? 3/5 4/5 NaNa goal in place and applicable to fisheries. Trade Policy/ They can improve as policy under review 3. POLICY OBJECTIVES: What are the specific sectoral policy objectives? 3/10 8/10 Fisheries policy could be better aligned to the National Nutrition Policy after the review 4. INSTITUTIONS AND INSTRUMENTS: What are the underpinning institutional arrangements and policy instruments? 7/20 16/20 Fisheries policy mentioned food security but did not allocate a policy area to critically examine the issues. Institutional arrangement to be improved to deliver revised policy objectives 5. INTERNATIONAL BEST PRACTICE: How do the arrangements and instruments relate to international best practice? 5/20 18//20 A major target for reform to apply IBP for food and nutrition security POLICY ASSESSMENT 6. OUTCOMES: What are the likely outcomes? Or impacts? 5/20 16/20 Reforms will lead to more positive food and nutrition security sensitive fisheries policy and control malnutrition. POLICY EVALUATION 7. IMPLEMENTATION FACTORS: What factors will likely affect the outcomes? Process, risks, uncertainty, political economy 4/5 4/5 Finance remains critically factor before and after review as the other risk which was the fouled political environment has been resolved/Human Capital/Tech Expert POLICY REFORM 8. REFORM POTENTIAL: To what extent is it possible to enhance the current policy and legal framework? 5/5 5/5 The reform potential is maximise as sectoral policy reviews 9. INSTITUTIONAL CAPACITY: Are there appropriate levels of skills and expertise available within key institutions to lead and undertake the necessary reforms; 3/5 4/5 NaNa and the Food Safety Authority will now work closely with the Fisheries Department. This will be enhanced by the inter-sectoral linkages policy area. There is room for improvement As fisheries is a specialised area, external technical assistance may be required as an interim measure/Loss of institutional memory/Paucity of human capital 10. KNOWLEDGE & INFORMATION: Is there sufficient relevant information and data available to inform policy reform? 3/5 4/5 The issues are adequately articulated by NaNa and other agencies. There is room to now apply to fisheries whilst acquiring more knowledge in the future. Total 41/100 83/100 14 The score of 41% depicts significant inadequacies to be addressed which if carried-out, would improve the score to 83% and put the sector on sound footing in achieving its full potential contribution to socio- economic development of The Gambia. Particular areas are observed from Table 1 such as Policy objectives (3); institutions and instruments; (4); application of international best practice that reform interventions should targeted (5); that will show up as impact under outcomes (6). Specifically, the draft policy 2017 is weak on policy objectives (3) as they relate to food and nutrition security. The subject was not analysed with the aim of proffering ways and means of ensuring availability, accessibility, proper utilisation and stability of food fish security in The Gambia. With respect to food and nutrition security, The Gambia has institution and instrument (4) such as NaNa; FSA with the capacity to improve the ‘quality’ of the fisheries policy framework on food and nutrition security to 83% (Table 1). The missing link is the weak institutional linkage with the Fisheries Department requiring strengthening. The policy area on institutional reform and strengthening institutional linkages is particularly position to address this inadequacy. NaNa policy under review; Food Act 2010, Draft FSQ Policy, FSQ Act 2011; Food Safety Authority - all embraces international best practices (5) as in Article 20 of the General Agreement on Tariffs and Trade (GATT); The WTO Agreement on the Application of Sanitary and Phytosanitary Measures (SPS Agreement); The decision of the ECOWAS Regional Committee of Legal and Judicial/Agriculture Experts for the Alignment of the Harmonized Sanitary and Phyto-sanitary Standards (SPS) Regulations; The Joint FAO/WHO Publication “Assuring Food Safety and Quality: Guidelines for Strengthening National Food Control Systems. However, the present weakness is the like of application to the fisheries sector. Thus, as mentioned earlier, the outcome (6) is wide spread malnutrition. The implementing factor (7) that is likely to affect outcome is finance. It is crucial that the necessary finance is available to implement the policy prescriptions including on food and nutrition security. 1.1.5.4.2. SWOT Analysis As evidenced by the SWOT analysis given below in Table 2, the fisheries of The Gambia have good opportunities which could help realise the full potential of wealth creation from the sector. The existence of productive and valuable stocks is a good opportunity. There is observably substantial donor interest in investing in the fisheries sector7. However, it must be internalised that significant challenges should be overcome in order to meet the policy goal. It is promising that the policy guidance now equipped with the full knowledge of opportunities to seize and challenges to overcome, will now accurately inform the ensuing strategy for the achievement of the policy goal and objectives. Table 2. SWOT Analysis of Fisheries and Aquaculture of The Gambia Strengths 1. Abundant and diverse fisheries and aquatic resources; 2. Evidence of traditional management systems; 3. Strong local and international market for fish, with accompanying livelihood opportunities; 4. Support for investment in sector (private, donors) (opportunity) 5. New fisheries policy and strategy 6. Initiatives to improve governance 7. Fisheries Department with adequate political mandate for regulation and governance 8. Huge Aquaculture Potential in The Gambia Basin 9. The community fisheries centres established at 15 fish landing sites around the country and in the inland sub-sector are very important as they offer enormous opportunities to the various communities 7 World Bank, EU and others currently on preparatory missions for investment in the sector 15 10. Construction of the fisheries jetty in Banjul and the rehabilitation of the dock yard facility provide some opportunity and enhance onshore landings and ancillary businesses. Weaknesses 1. Overfishing of some stocks (ground species, pink shrimp and the sardines) 2. Anxious relationship between sections (MCS Section and Navy) 3. Inadequate landing site infrastructure; 4. Low level of organisation and business skills; 5. Fisheries and aquaculture policy and strategy being revised, but implementation approach requires extensive human capacity development 6. Fisheries Department is under-resourced to perform its role; 7. Weak MCS infrastructure -Foreign IUU and illegal exports; 8. Lack of fish harbour complex hinders value addition and fisheries investments 9. Weak Gambian ownership and participation in both industrial fisheries and artisanal sub-sector. Benefits accrue to vessel owners and capital repatriated 10. The industrial fisheries catches are landed outside of The Gambia, and therefore barely recorded thus depicting low impact of fisheries on food security and the Gambian. Impact on catch statistics and thus, stock status estimates misleading. Illegal exportation of fish by artisanal canoes. 11. Observers paid by industrial operators makes them open to collusion with loyalty to paymaster 12. Weak Aquaculture infrastructure and values chain services (hatchery and fish feeds) 13. Food fish and nutrition insecurity especially in the hinterlands 14. Very infrequent stock assessment especially in the industrial sector 15. Weak middle level manpower training middle level manpower training in marine engineering deck officer training, refrigeration etc. 16. Inadequate repair and maintenance services/facilities for machinery, equipment and fishing crafts especially in the inland and marine artisanal sub-sector; 17. Lack of tertiary training institution/opportunity at undergraduate/graduate level in The Gambia. 18. Evidence of policy incoherence (small-scale fisheries pay registration fees/taxes to Revenue authority, fisheries, local government and maritime agency) 19. Open access 20. Inadequate enforcement of conservation measures/regulations 21. Inadequate stock assessment in inland fisheries/lack of capacity to conduct biomass estimates 22. Weak donor co-ordination ( e.g. FAO, World Bank; all doing policy and strategy review at the same time) 23. The absence of fish reception centres and storage facilities at the port, airport and border areas hinder the export of fishery products 24. Inadequate safety at sea measure/lack of insurance for fisheries against mortality/capital assets 25. Food fish and nutrition instability - dominance Senegalese participation in the fish value chain and any abrupt withdrawal e.g. during Senegalese festive season or national occasion triggers fish unavailability and thus; food fish and nutrition instability Opportunities 1. Although the status of deep sea finfish and shrimps are not known, lack of fishing effort directed to these stocks suggests that they are underexploited; 2. Possibility of enhancing existing fishing activities through effective management, technology transfer and onshore processing; 3. Potential for expansion of aquaculture for improved food security and employment of rural poor. Fish resources of the River Gambia are under exploited and improvements in fishing technology and techniques will allow for increased fish catch landings 4. Access and proximity to EU markets and fish trade; 5. Government and donor support for sector development; willingness of stakeholders and CBOs to adopt innovations; 6. Increased role of artisanal fisheries in rural economy; 7. Inland water bodies and Gambia River wetlands supporting Aquaculture growth 8. Positive development in regional cooperation in sector development and management (SRFC, ECOWAS, AU) 9. Private sector investment in industrial fish processing and storage facilities exist 10. Opportunity to improve on food fish and nutrition security via aquaculture 11. Opportunity to structured donor coordination in the new dispensation; 12. Political stability Threats 1. Overexploitation if fisheries expansion overrides fisheries management system development, including MCS; 2. Change in policy/ management may adversely affect employment and food security for the population of The Gambia; 3. Uncertainty/risks of investment; 4. Infrastructure is underdeveloped (electricity, roads and water supply); 5. Threats to biodiversity conservation (by-catch/discard problem) 6. Limited capital investment for the industrial fisheries sector and limited loan facilities for the artisanal fishery sector 7. Vulnerability to climate change 8. Political economy issues - previous government left a fouled fisheries department in its wake which would require deliberate but sensitive effort to address 9. High cost of energy and fuel, high interest rates on loans being charged by the banks and lack of 16 1.1.5.4.3. Freetown Fisheries Framework Assessment The overall score from the FFF analysis in the Gambia as depicted in Table 3 is 40% meaning many issues are yet to be addressed in order to realise the full potential of the fisheries sector. The rapid participatory development prospect appraisal of the fisheries provides an indication of challenges that this policy/strategy review will now target for an improved and viable fisheries sector. Table 3. Freetown Fisheries Framework Results for The Gambia Fisheries and Aquaculture Development Prospect Assessment Key Questions Score/10 1. Has the sustainable economic value of the fish stocks been determined? 2. Is the national vision and strategy for the sector appropriate and agreed? 3. Is there a well-defined fisheries policy? 4. Does the fisheries law provide an enabling framework? 5. Is there a high degree of policy coherence? 6. What is the status of the fisheries management systems? 7. Is there a well-defined Strategy for policy implementation? 8. Is there sufficient institutional capacity for implementation? 9. Is there appropriate finance and investment available? 10. Is there support in place from national, regional and international organisations? Total Score 1 5 5 7 4 2 6 2 3 5 40 The following are summary explanations for scores awarded to the 10 questions in order: 1. The FFF analysis begins with the sustainable economic value of the fish stocks because fish stocks are a form of natural capital asset which contributes to societal wellbeing in many ways such as poverty reduction, economic growth etc. Thus, an estimation of the quantity and value of the fish stocks should also inform national development plans. An assessment score of 1/10 was awarded for the determination of the sustainable economic value of the fish stocks in The Gambia as no such estimates have been determined. 2. Many attempts have been made to set a national policy and strategy which evolved onto the recent policy and strategy documents under review. Through facilitated workshops and meetings, stakeholders are given the opportunity to express their views and contribute to the identification of opportunities and priorities. A score of 5/10 was awarded for the national vision and strategy for the fisheries sector in The Gambia as the current vision and strategy document provides a basis for sectoral development and future reforms. But the gaps in the policy means that strategy will have to be updated once the policy defects have been corrected. The strategy should could be rearranged and made more focused on prevailing circumstances and aligned to international best practices. 3. A fisheries policy should define a set of objectives for the sector and the implementation process for achieving them. The assessment score awarded for the draft fisheries policy 2017 - is 5/10. The policy has as much as 16 policy areas some of which could be merged and made more manageable. The central policy area of conservation and sustainable resource use was not considered and food and nutrition issues were given a superficial attention. However, the document rightly considered the comparative advantage of The Gambia and recognised sport fishing as a standalone policy area. Furthermore, the vexed issue of lack of institutional linkages which undermines policy implementation was cleverly taken into account. So, while there is still scope to improve the document, it provides a good basis for update into a very functional policy document. 17 4. Another question that the FFF asks is; does the current fisheries law provide an enabling framework for fisheries development? The score awarded is 7/10 as it is focused on the key issues in fisheries and fisheries management with the correct volume for rapid reference. Other very contemporary issues could be considered in the regulations. 5. The score of 4/10 for policy coherence suggests weak policy coherence. For example many institutions reserve the right to collect access fees from small scale fisheries depicting policy weakness. This means that policies are not coordinated and complementary and are contradictory. It is an important characteristic of ineffective governance. The policy guidance on the relationship between the navy and the MCS unit has been unclear for a long time owing mainly to interference of the former regime which undermined and continues to do so - sustainable resource use. Horizontal policy coherence with other institutions could be doubtful given the admittedly weak institutional linkages. 6. The status of fisheries management is out-rightly weak to gain a score of 2/10. The office of Director of Fisheries is said to be vacant in law but occupied in reality with the occupier having unfettered access to his office. This is creating uncertainty amongst subordinates unclear as to from whom to take directives. This situation sends signals to would-be investors or visiting scholars of a system in disarray. Basic data on stock status is unavailable and no attention is paid to the economics of harvesting with limited capacity to patrol Gambian EEZ making the fisheries exposed to IUU fishing. The Navy with no fisheries training have assumed MCS duties but rely on the MCS unit for information. Management plans of other important species are yet to be developed and made operational and the human capacity is limited to perform modern fisheries management functions. 7. The Fisheries and Aquaculture Strategy 2017-2021 provides guidance on a strategic work-plan for fisheries policy in The Gambia. The mission statement is “Through the recognition of fisheries and aquaculture potentials as natural economic resources and by ensuring responsible and ecologically sustained fishing and aquaculture practices, to optimally harness The Gambia’s fisheries and aquaculture resources and to deliver employment, foreign exchange support, food and nutrition security in achieving accelerated national growth and development”. With the Fisheries and Aquaculture Strategy 2017 – 2021 serving as planning guide for all stakeholders and operators including member associations of the National Fisheries Platform the areas of special emphasis for the strategy are institutional restructuring and capacity strengthening; key stakeholder capacity building and sensitisation; and inter-sectoral linkages and optimisation of overall value chain of the fisheries and aquaculture sector. The strategy has the body of information for rearrangement and realignment to bear on the reviewed policy guidance to score 6/10. 8. The very weak institutional capacity for policy implementation in both public and private sectors is what gives rise to the weak fisheries management system observed in question 6. Consequently a score of 2/10 is also awarded as there is no fisheries institution for higher learning (to graduate or post-graduate level) in The Gambia. Capacity-building should therefore be a top priority for the future. The fisheries department does not currently have the capability and capacity to lead the fisheries and aquaculture sector effectively into the future. It should be recognised that the fisheries department suffered abrupt sackings of senior officer by the former regime and upcoming young fisheries professional lost the opportunity for the badly needed mentorship. Development/research projects stalled or were completely terminated because of the hostile political environment. Thereafter, many staff continued under conditions of great uncertainty. 9. With respect to if there is appropriate finance available for policy implementation, the scores is 3/10. Policy implementation is a costly issue and the record of public re-current re-investment in revenue generating renewable natural resource sectors has not been good in many African countries. The tendency is to regards such sectors as “cash box” where never ending revenue stream is derived while overlooking 18 development potentials. The risk of emphasing infrastructure, and giving limited attention to governance reform and capacity-building should be avoided. Whilst there are interests being shown in investing in fisheries by the donor community, dependable public investment or public-private-partnerships in fisheries is the key especially when assessments indicate that the fisheries sector is a good area for future investment. 10. The final question is if there is support in place from national, regional and international organisations. The score for this is 5/10. There is some support at all levels of the fisheries of The Gambia except that there is no support from institution of higher learning. However, the nation supports training overseas which is now said to be far in between. At the national level, the Department of Fisheries in the Ministry of Fisheries, Water Resources and National Assembly is the lead governmental organisation for the fisheries sector. But, Fisheries also receives support from other Ministries, Agencies and Departments (MDAs) such as the National Nutrition Agency; Food Safety Authority; National Revenue Authority; Environmental Protection Agency; Finance Ministry to name a few national institutions. There is room for improvement with respect to support from the Navy. On the regional front, The Gambia shares important fish stocks (e.g. shrimp, tuna and small pelagics) with neighbouring Senegal. The Gambia is a member of the Sub-Regional Fisheries Commission (SRFC) and the Economic Organisation of West African States (ECOWAS), AU which provide a forum to discuss key issues and propose actions. FAO, EU, UNDP, JICA, Taiwan have also had some involvement in development initiatives. The World Bank- funded West African Fisheries Programme for West Africa (WARFP) is currently on preparatory assessment for investment in The Gambia. Bilateral relationships with international donor community have been critical over the years and will be in coming years. There are very active fisheries platforms and community fisheries centres supporting management. The national development plan 2018-2021 sets the direction for all sectors, while the national fisheries policy provides specific guidance. But, there is a high level of uncertainty regarding current and possible future donor investments (e.g. World Bank’s proposed investments in fisheries have seen a number of changes in level of investment over a short period of time). There is room for improvement in support needed. 1.1.5.5. Key Recommendations 1. The uncertainty at the helm of the Fisheries Department (Position of Director of Fisheries) must be resolved immediately for any serious effort to be dedicated to tackling the sectoral problems and using the opportunities in achieving the full potential contribution of the fisheries sector to societal wellbeing. Human capital resource in fisheries and fisheries management which is in dearth in The Gambia should be developed and retired officers redeployed as consultants because their services is still required. 2. Regularise the relationship between the MCS unit and the Navy with the MCS as the constituted boarding team as provided by law for ensuring that fishing operations at sea are carried out professionally and within the ambit of the law. 3. The policy framework should emphasise food and nutrition security of populations as a policy area and be re-aligned towards a wealth-based fisheries management approach, with a focus on use rights as the key mechanism. This is consistent with international best practice embracing the blue economy developmental approach. 4. Fisheries policy should be made coherent with other national and local programmes as a lack of policy coherence is a threat to policy implementation. 5. Legal frameworks should also be made supportive and enabling of the reformed policy. 6. Identify and implement pilot fisheries programmes for the development of management approaches specific for The Gambia to provide a “learning by doing experience” in order to build 19 confidence amongst stakeholders through successful implementation whilst fine-tuning policy and legal frameworks. Capacity-building will be required to enable a wide range of stakeholders and stakeholder groups to fully engage within these activities. 7. Wealth creation from capture fisheries requires the establishment of full ownership over the fish resources in The Gambia waters, and ensures that exploitation is undertaken on a sustainable basis which meets appropriate standards set for both local and international markets. For that purpose, a functional fishing harbour is crucial for inspection and transhipment and other onshore operations. 8. Align policy to key international guidelines such as; 1) AU’s Policy Framework and Reform Strategy for Fisheries and Aquaculture in Africa 2) AU’s Aquaculture Action Plan 2016-2025. 20 2.0. Participatory Definition of Terms, Policy Area Development/Alignment and Policy Goal Setting 2.1. Participatory Definition of Terms During the consultative working workshop of the 18th January 2018 at Senegambia, participants where fully engaged in discussions on policy development, analysis and implementation. It then became very necessary to agree on a common frame of reference with respect to key terms in policy studies which will be used in this policy development. This was to build the capacity of would-be policy implementer and empower them from the outset. The following terms were defined and adopted; Policy Goal: State of affairs which the fisheries and aquaculture system aspires to attain. This is a very succinct expression of a desired state of affairs. Only one overarching goal is stated. Policy areas: These are issues which should be addressed in order to achieve the goal. A number of areas would have to be covered before achieving the goal. Policy areas vary from one country to the next and should be contextualised in specific situations. Participants appreciated (as proposed by consultant) that it was opportune for the prescribed 8 policy areas of Policy Framework Reform Strategy (PFRS) in Africa coordinated by the AU to be reflected in the policies of The Gambia because it captures International Best Practice (IBP) and enhances comparability of progress. Further detailed consultations will be undertaken when the AU conducts its policy alignment studies so by then, The Gambia will hit the ground running. Policy objectives: These are concrete steps to be taken in addressing the issues established in a particular policy area. Policy Outcomes: These are expected changes brought about by the policy objectives. Monitoring indicators: These are pointers which assess progression towards a policy outcome. Values/Principles: These are world views which stipulates required environment for a successful policy implementation. 2.2. Policy Area Development and Alignment Observable inadequacies in the draft fisheries and aquaculture policy of The Gambia 2017 were the absence of the key policy area of conservation and sustainable resource use and the many (15 policy) areas of the draft policy 2017 - some of which were actually in fact, policy objectives underpinning policy areas. From a good understanding of the aforementioned terms, participants at the consultative working workshop engaged in policy area development and alignment with PFRS. During the exercise, the policy areas of the PFRS and the draft policy 2017 presented in Table 4 were analysed for logical merging and alignment. 21 Table 4. Policy Areas of the Draft Policy for Fisheries and Aquaculture of The Gambia 2017 and that of PFRS in Africa Policy Areas of the Draft Policy for Fisheries and Aquaculture of The Gambia 2017 1. Marine Artisanal Fisheries 2. Monitoring, Control and Surveillance 3. Access to Financial Resources 4. Fisheries Research 5. Human Resources Development 6. Inland Fisheries and Aquaculture 7. Inter-sectoral Linkages 8. Gender Youths and Fisheries Sector Development 9. Institutional Reforms 10. Fisheries Extension 11. Industrial Fisheries 12. Post-Harvest and Quality Control 13. Fish Marketing 14. Sub-Regional and International Cooperation 15. Sport Fishing Policy Areas of PFRS in Africa 1. Conservation and Sustainable Resource Use 2. Sustainable Marine Artisanal Fisheries Management 3. Sustainable Aquaculture and Inland Fisheries Development 4. Competitive Fish Trade and Marketing 5. Sustainable Industrial Fisheries and Fisheries on the High Seas 6. Sub-Regional, Regional and International Cooperation 7. Human Capital Development in Fisheries and Aquaculture 8. Cross-Cutting Issues in Fisheries and Aquaculture 2.2.3. Reconciling Policy Areas of the Draft Policy 2017 and the Policy Areas of PFRS in Africa A critical policy analysis involving participant reconciled the policy areas in Table 4 to give the policy areas for fisheries and aquaculture policy of The Gambia 2018 presented in Table 5. The workshop agreed that conservation and sustainable use of fisheries resources was the foremost policy area because without viable stocks there would be no fisheries. The moral obligation to ensure food and nutrition security for the population warranted a policy area for that issue. In merging policy areas suggested by the draft policy, it was logical that issues of fisheries research and MCS are important objectives under the conservation and sustainable use of fisheries resources policy area. Post-harvest and quality control falls squarely under competitive fish trade and marketing policy area as an objective whereas; fisheries extension is an objective under both artisanal fisheries and aquaculture and inland fisheries policy areas. The comparative advantage of The Gambia in tourism convinced workshop participants that sport fishing must be maintained as a standalone policy area. Gender, youth, fisheries finance/insurance, disaster/risk, climate change and political economy considerations are all perceived as cross-cutting issues in policy development circles which could fall under one policy area (Cross-Cutting Issues). Finally, weak inter-sectoral linkages have been identified as a crucial causative factor for policy failures in many African countries; The Gambia not being an exception. Thus, Inter-sectoral Linkage in combination with institutional reform was designated as a policy area. In this way the 11 hybrid policy areas (Table 5) were identified and agreed upon from which objectives, outcomes and indicators will be developed. These policy areas once properly addressed should achieve the policy goal crafted in Sub-section 2.3. Table 5. Policy Areas for Fisheries and Aquaculture Policy of The Gambia 2018 1. Policy Area 1. Conservation and Sustainable Resource Use 2. Policy Area 2. Sustainable Marine Small-Scale Fisheries Management 3. Policy Area 3. Sustainable Aquaculture and Inland Fisheries Development 4. Policy Area 4. Competitive Fish Trade and Marketing 5. Policy Area 5. Sustainable Industrial Fisheries and Fisheries on the High Seas 22 6. Policy Area 6. Sub-Regional, Regional and International Cooperation 7. Policy Area 7: Human Capital Development in Fisheries and Aquaculture 8. Policy Area 8. Food Fish and Nutrition Security 9. Policy Area 9. Institutional Reform and Inter-sectoral Linkages 10. Policy Area 10. Sport Fishing 11. Policy Area 11. Cross-Cutting Issues in Fisheries and Aquaculture (Fisheries Finance/Insurance, Gender and Youth, Disaster & Risk Management, Climate Change, Political economy) 2.3. Policy Goal Setting The Draft Fisheries and Aquaculture Policy 2017 under review states that “The overall goal of the National Fisheries Sector Policy is to promote a thriving fisheries sector, encourage responsible fishing and fish utilization practices, and sustainable development of fisheries for food security and poverty reduction in The Gambia”. The drawback in the goal is that it did not paint a desired picture/condition that the sector wants to achieve but instead; embraced a number of activities to be undertaken reminiscent of strategy development. Thus, it was necessary to develop a policy goal. In doing so, participants agreed on key issues to be considered in crafting a policy goal. 2.3.1. Key Issues Considered in Policy Goal Setting The following issues were actively considered in setting the policy goal: 1. The issue of Ecological Sustainability is important because the resource has to be available in a healthy state and environment perpetually for any viable fisheries 2. Secondly, Economic Viability/Efficiency must be ensured because fisheries are natural capital assets which must be used prudently as they are scarce resources. Besides, investment in fisheries is in competition with other sectors of The Gambia economy which must become economically justifiable with respect to the opportunity cost. Thus, fishing operations including harvest levels determinations should reflect economic efficiency. 3. Thirdly Food and Nutrition Security buttresses the health and education aspect of human capital. We must remind ourselves that all our endeavours are geared towards improving the welfare of human beings. As NaNa (2010)8 puts it, “Good food and nutrition is a basic building block of human capital”. 4. Finally, Societal Stability must be maintained with equitable distribution of resources because we need stable societies to flourish. The policy goal that emerged from those considerations is an: “Ecologically and economically sustainable fisheries that ensures food and nutrition security for the population in a thriving and stable society” 8 NaNa, (2010). National Nutrition Policy 2010-2020. National Nutrition Agency, The Gambia 23 3.0. Introduction 3.1. Justification for Fisheries Policy The Gambia is bequeathed with substantial fish resources in its marine, freshwater and aquaculture ecosystems that can sustain food and nutrition security; supports livelihoods as a source of employment/income; foreign exchange earnings from export of fish and fish products and the sector provides many use and non-use values. The Gambia Basin offers viable aquaculture production potential which can promote food and nutrition security, employment and income generation to contribute immensely to poverty reduction in The Gambia. However, this important natural endowment has not lived up to its full potential contribution to economic development. Although a valuation of the sustainable economic value of fisheries resources has not been done, the weaknesses and threats suggest an underperforming fisheries sector. There are also evidences of overfishing of important species. A myriad of the challenges catalogued in Table 2 are holding back the fisheries sector from making its full contribution to societal wellbeing in The Gambia. This policy document serves to prescribe and provide guidance to the actions that indicate how the task of achieving the policy goal might be accomplished. This is why the logical approach to seizing opportunities and addressing challenges in the fisheries sector must pass through the documentation of an appropriate policy in order to unleash the strengths and opportunities whilst tackling the threats and weakness hindering the achievement of sectoral goal. The inland fisheries and aquaculture remain (with effective management) another added and viable option to create a major seafood industry for both domestic and international market and make a significant contribution to pro-poor economic growth in the short, medium term and long term. The Department of Fisheries in the Ministry of Fisheries, Water Resource and National Assembly has the mandate of fisheries resource management implemented through policies, laws, regulations and participation in international organisations that administer treaties and agreements affecting conservation and allocations of internationally managed fish stocks. Participatory approaches are used in fisheries management of inland fisheries and small-scale fisheries wherein the multiplicity of stakeholders are empowered for resource management in communities they live and work. The Fisheries Department takes the lead from the National Development Plan (NDP) of The Gambia 2018-2021. Consequently, this policy framework has been informed by the NDP. Many international best practices have been proposed in recent years of which this policy document has been mindful. The NDP main outcome areas for the fisheries sector include: 9 Enhanced Institutional Efficiency and Effectiveness for the Fisheries Sector 9 Improved Value Chains for Fisheries and Aquaculture Transformation The issues raised by NDP under the aforementioned outcome areas have be captured by this policy document and the ensuing strategy for the fisheries and aquaculture sector of The Gambia. 3.2. Arrangement of the Policy for Fisheries and Aquaculture of The Gambia 2018 The policy framework is outlined in five Sections. The background Section 1 gives the evolution of policy in the fisheries of The Gambia and describes the policy review and assessment methods used Section 2 specifies the participatory process followed to develop policy areas and policy goal for this document. The justification for the development of a policy framework is given in Section 3 whereas; Section 4 specifies the policy goal and policy areas. In a participatory manner, we have crafted the policy 24 goal that the fisheries of The Gambia should gravitate towards and the recommendation is that joint efforts must keep the goal in focus. The number of policy areas to cover in order to achieve the goal sum up to eleven (11). Each policy area is accompanied by objective/s, outcomes & monitoring indicators to ascertain what we want to achieve under a policy area, outcomes we expect and how we can verify that we are making progress. Objectives under policy area are considered as a concrete step towards the overall policy goal. Final Section 5 specifies the policy implementation principles (both substantial and procedural principles). 25 4.0. Policy Goal and Policy Areas An all-embracing goal which the fisheries and aquaculture of The Gambia seeks to achieve has been stated in sub-section 4.1. This is followed by specific policy areas and each policy area is accompanied by the policy objectives. The expected changes are outcomes and monitoring indicators shows progress towards the outcome/objective/goal. The values or principles which underpin the policy, stipulates required environment for a successful policy implementation. The accompanying strategy for operationalising this policy is presented in another document- The Strategy for fisheries and aquaculture of The Gambia. 4.1. Policy Goal The policy goal is an: “Ecologically and economically sustainable fisheries that ensures food and nutrition security for the population in a thriving and stable society” 4.2. Policy Areas The policy areas are issues which should be fulfilled in order to achieve the policy goal. These policy areas could be economic, social or bio-physical in nature which once resolved, propels the fisheries system towards the policy goal. Eleven of such areas have been identified to achieve and satisfy the policy goal. 4.2.1. Policy Area 1. Conservation and Sustainable Resource Use There is no viable fishery without viable fish stock in a healthy environment. Another important factor is the choice of management approach and the type of motivations generated could impact on conservation and sustainable use of fisheries resources either adversely or positively. Production centric approaches focusing on volume of resource harvested undercuts fisheries resource conservation and sustainable use. On the contrary, participatory wealth-based methods that embraces making efficient use of societal resources continue to reinforce conservation and sustainable fisheries resource use. Thus, international best practices now focus on economic viability, biological sustainability and equitable allocation in the process of generating optimum wealth at all levels incorporating blue economy principles. This will be carried out with the understanding that conserving living aquatic resources across water bodies and rebuilding stocks and restoring habitats is the highest priority for the management of fisheries of The Gambia. 4.2.1.1. Policy Area Objective To create institutions and take actions that will; 9 Ensure healthy ecological systems from which sustainable fisheries and aquaculture yields are obtained 9 Maximise wealth-creation in fisheries and aquaculture buttressed by efficient use in fisheries and aquaculture operations 9 Promote equitable resource allocation at all levels of the sector for enhanced social stability 4.2.1.2. Policy Objective Outcomes The following outcomes should be expected; 9 Sustained fisheries research conducted and annual scientific information on parameters such as, stock size, capacity, harvest cost, catch size, revenue and ecosystem health obtained 9 MEY reference point followed in an ecosystem approach to fisheries and aquaculture management and yield levels determined to maintain stocks size at MEY 26 9 Information generated for improvement of community livelihoods 9 Economic value of fish stocks determined 9 Effective, comprehensive and integrated system of Monitoring Control and Surveillance – (MCS) - is in place. Fishing operations are monitored, controlled and surveillanced to adhere to globally accepted best practices ensuring that harvest is legal, regulated and reported. 9 Capacity of relevant national institutions developed to undertake appropriate MCS of The Gambia fisheries waters. International cooperation for MCS of shared stocks sought and artisanal fisheries operators involved in MCS 9 Vulnerable habitats identified and fully protected. 9 Management plans developed for stocks 4.2.1.3. Monitoring Indicators 9 Available annual report on biological, economic and social aspects of fisheries and aquaculture to ensure stakeholders awareness of the stock size, capacity, harvest cost, catch size, revenue, status of exploitation and ecosystem health which are used for the management of fisheries and aquaculture. 9 MEY used to indicate effort levels and allowable catch size 9 Livelihood assessment done and recommendation implemented with evidence of improved community livelihood status 9 Economic value of fish stock estimates available and sustainable revenue determined and obtained annually 9 Appropriate tools such as, MPAs, EAF, EAA, TURFs, bio-physical, economic and social management measures (e.g. seasonal closures, zoning, spatial planning, taxes, indigenous knowledge etc.) are developed and evidence of usage in management to prevent overfishing 9 Evidence of effective and sustainable MCS systems are operating with adequate institutional framework to establish ownership over resources through ensuring that appropriate controls are set, monitored and enforced. 9 Capacity of MCS institutions built in both material and human resource terms to carry out MCS duties and evidence of such duties being effectively done. Evidence of international cooperation in MCS of shared stock and evidence of effective involvement of artisanal fisheries operators in MCS 9 Evidence of vulnerable habitats being protected and recognised by the law of the land 9 Fisheries management plan for all commercial stocks developed and evidence of being operational 27 T able 6. Policy A rea 1. C onservation and Sustainable R esource U se Policy A rea Policy O bjective Policy O utcom e M onitoring Indicator C onservation and Sustainable R esource U se G uarantee healthy ecological system s supportive of participatory sustainable fisheries and aquaculture Sustained fisheries research conducted and annual scientific inform ation on param eters such as, stock size, capacity, harvest cost, catch size, revenue and ecosystem health obtained Available annual report on biological, econom ic and social aspects of fisheries and aquaculture to ensure stakeholders aw areness of the stock size, capacity, harvest cost, catch size, revenue, status of exploitation and ecosystem health w hich are used for the m anagem ent of fisheries and aquaculture. Appropriate tools such as, M PAs, EAF, EAA, TU RFs, bio- physical, econom ic and social m anagem ent m easures (e.g. seasonal closures, zoning, spatial planning, taxes, indigenous know ledge etc.) are developed and evidence of usage in m anagem ent to prevent overfishing Effective, com prehensive and integrated system of M onitoring C ontrol and Surveillance – (M C S) - is in place. Fishing operations are m onitored, controlled and surveillanced to adhere to globally accepted best practices ensuring that harvest is legal, regulated and reported. Evidence of effective and sustainable M C S system s are operating w ith adequate institutional fram ew ork to establish ow nership over resources through ensuring that appropriate controls are set, m onitored and enforced. C apacity of relevant national institutions developed to undertake appropriate M C S of The International cooperation for M C S of shared stocks sought and artisanal fisheries operators involved in M C S C apacity of M C S institutions built in both m aterial and hum an resource term s to carry out M C S duties and evidence of such duties being effectively done. Evidence of international cooperation in M C S of shared stock and evidence of effective involvem ent of artisanal fisheries operators in M C S V ulnerable habitats identified and fully protected. Evidence of vulnerable habitats being protected and recognised by the law of the land M anagem ent plans developed for stocks Fisheries m anagem ent plan for all com m ercial stocks developed and evidence of being operational M axim ise w ealth- creation in fisheries and aquaculture buttressed by efficient use of societal resources M EY reference point follow ed in an ecosystem approach to fisheries and aquaculture m anagem ent and yield levels determ ined to m aintain stocks size at M EY M EY used to indicate effort levels and allow able catch size Econom ic value of fish stocks determ ined Econom ic value of fish stock estim ates available and sustainable optim um revenue determ ined and obtained annually Prom ote equitable resource allocation at all levels of the sector for enhanced social stability Inform ation generated for im provem ent of com m unity livelihoods Livelihood assessm ent done and recom m endation im plem ented w ith evidence of im proved com m unity livelihood status 28 4.2.2. Policy Area 2. Sustainable Marine Small-Scale Fisheries (SSF) Management Data on stock status is scanty in the fisheries of The Gambia like in many other African countries. But some information could be gleaned from e.g., 2016 Frame Survey9, Belhabib et al; (2013)10; Mendy, (2009)11 and the 2008 catch assessment survey by the Fisheries Department12. The Gambian marine fisheries are important for the local population. Belhabib et al; (2013) suggests that annual catches ranges between 50,000 and 60,000 with the dominant species caught being bonga shad (Ethmalosa fimbriata), a popular species locally important for food security. Noteworthy, is the declining catches of Bonga which, along with droughts and increasing fish prices, further jeopardizes food security in The Gambia. The small-scale fisheries is responsible for about 93.5% of the national catch (from 2008 assessment) which makes it the backbone of food fish security in The Gambia especially when >50% of the population depend on fish for source of animal protein. The subsector also provides job for 30,000 Gambians. Some 4234 fishermen were engaged in small-scale fisheries in 2016 and landed there catch at 1219 landing sites. This represents a marked decrease in fishermen (-28%) and landing sites (-31%) from the 2006 baseline. The frame survey suggests the expulsion of non-Gambians from inland fisheries as a probable causative factor. But from a fisheries management perspective, the effort withdrawal represents an important opportunity to invest in stock rebuilding involving CBOs and NAAFO especially when decline of the main species which sustains food and nutrition security has been observed. Although historically non-Gambian nationals dominated the small-scale fisheries of The Gambia, the 2016 frame survey indicates that the trend has been reversed except for the Atlantic coast where the Senegalese still dominate. The increased participation of Gambians in fisheries is crucial for investment in stock rebuilding to ensure conservation and sustainable resource use (Policy Area 1). The policy framework as it relates to small-scale fisheries recognises the sub-sector’s food and nutrition security role. 4.2.2.1. Policy Area Objectives It is important to take action so as to; x To restore the Bonga Shad, Sardinella spp and other important stocks to curb potential fish food insecurity especially for the vulnerable populations x Develop food and nutrition security following blue economy principles around the dominant stock in The Gambia fisheries x Mainstream small-scale fisheries in the formal economy and strengthen/recognise its contribution to poverty alleviation, food and nutrition security and socio-economic benefits of fishing communities. x Organise and empower user organisation and other stakeholders with built capacity for the promotion of good explicit participatory fisheries governance, sustainable development and responsible use of fisheries and aquaculture resources. x Engage in cooperation (bilateral and regional) for effective management of shared fishery resources and maintenance of healthy ecosystems. 4.2.2.2. Policy Area Outcomes The following outcomes should be expected; 9 The 2016 Fishery Frame Survey, Fisheries Department, The Gambia 10 Belhabib et al; (2013). Big Fishing for Small Fishes: Six Decades of Fisheries in The Gambia, “The Smiling Coast of Africa”. Fisheries Centre Working Paper # 2013- 07. University of British Columbia 11 Mendy (2009). An Overview of The Gambia Fisheries Sector. Fisheries Department, The Gambia 12 2008 Catch Assessment Report. Fisheries Department, The Gambia 29 x The stock of bonga shad and sardinella spp., and other important species are fully restored and harvested sustainably x Food and nutrition programmes developed around bonga shad and sardinella spp with the object of ensuring food and nutrition security for the population x In consonance with key recommendation of CCRF, small-scale fisheries is prioritised in the national development plan, its contribution to national economy is clearly/specifically reflected and it is integrated in poverty reduction policy at the national level. x The full potential of small-scale fisheries to generate socio-economic benefits is assessed and determined with machinery and strategies firmly in place to identify and release such potential. x Efficient and effective extension service delivery mechanism equipped with required human and material resources x With the full participation of CBOs and NAAFO, TURFs instituted in small-scale fisheries, managed by CBOs/Platforms x Small-scale fisheries value chain is analysed, understood, value chain development organised and facilitated in order to effectively derive the benefits therein using value chain assessment tools with gender mainstreaming an integral part of small-scale fisheries development strategy. x Effort levels in small-scale fisheries adjusted to productivity as informed by well thought-out management plans derived from regular stock assessment with the full participation of affected actors. x IEZ protected from industrial operations to ensure that legitimate rights are not extinguished or infringed Should infringement take place, fair valuation of infringement is carried out and appropriate and adequate compensation considered according to national law x Capacities of users’ organisations and other fisheries stakeholders/institutions for participatory management of the fisheries developed nurtured and reflected in the decision-making and policy formulation processes in the sub-sector. x Establish appropriate vocational institutions to train actors and enhance participatory management of the fisheries x Small-scale fisheries actors are represented at national technical scientific committee and participate in the development and adoption of local and scientific knowledge for decision making on the sustainable management of fisheries and aquaculture resources x Instituted mechanisms for strong regional cooperation on fisheries management, including MCS, migratory and shared stocks to address transboundary matters to ensure that tenure rights of small-scale fisheries communities are granted and protected x Develop and apply effective monitoring and enforcement mechanisms to deter, prevent and eliminate all forms of illegal and/or destructive fishing practices having a negative effect on small-scale fisheries ecosystems. 4.2.2.3. Monitoring Indicators x Evidence of full restoration of bonga shad, sardinella and other important stocks and managed with robust management plans x Evidence of food fish and nutrition project implemented to ensure food and nutrition security in food fish x Small-scale evident and prioritised in NDP, National Agricultural Development Plan, National investments frameworks, etc.: Indicates prioritisation of small-scale fisheries in investment plans, poverty alleviation documents and other national strategy documents. x Socio-economic appraisal of small-scale fisheries undertaken and recommendations with respect to seizing opportunities and overcoming challenges fully implemented - ensures that the full potential of small-scale fisheries to generate socio-economic benefits is released on a sustainable basis with readily available human and material resource for the dissemination of innovation 30 x Evidence of efficient and effective extension service delivery mechanism equipped with requisite human and material resources x Evidence of TURFs institution in small-scale fisheries managed by CBOs and NAAFO guided by principles of responsible fisheries x Evidence that small-scale fisheries value chain has been analysed, understood, value chain development organised and facilitated in order to effectively derive the benefits therein using vale chain assessment tools with gender mainstreaming an integral part of AF development strategy x Capacity is matched to small-scale fisheries productivity and stated clearly in developed stock management plans: ensures sustainable exploitation in small-scale fisheries and societal stability. x Evidence of IEZ protection from industrial operations and tenure protected to ensure that legitimate rights are not extinguished or infringed. Should infringement take place, there should be evidence of fair valuation of infringement and appropriate and adequate compensation considered according to national law x Evidence of capacity building programmes at national and regional levels: this monitors whether capacity is being built for fisheries stakeholders and institutions for their empowerment to ensure effective participatory management of the fisheries x Evidence of suitable vocational institutions: this monitors whether appropriate vocational institutions are available to enhance participatory management of the fisheries. x Evidence of small-scale fisheries actors represented at national technical scientific committee: ensures that small-scale fisheries actors participate in the development and adoption of local and scientific knowledge for decision making on the sustainable management of fisheries and aquaculture resources x Transboundary water body authorities–, RFBs and bi-and multilateral fisheries agreements exist: This to ensure that transboundary water body authorities, RFBs and bi- and multilateral fisheries agreements exist as part of mechanisms for efficient and effective regional cooperation on fisheries management including MCS, migratory and shared stocks to ensure that tenure rights of small-scale fisheries communities are granted tenure rights and protected. x Minimum terms and conditions exist and are implemented to monitor resource sustainability and secured economic returns as basis for regional access policy for granting fishing access to DWFN x Evidence of effective monitoring and enforcement mechanisms to deter, prevent and eliminate all forms of illegal and/or destructive fishing practices having a negative effect on marine and inland ecosystems 31 T able 7. Policy A rea 2. Sustainable Sm all-Scale (SSF) Fisheries M anagem ent Policy A rea Policy O bjective Policy O utcom e M onitoring Indicator Sustainable Sm all- Scale Fisheries M anagem ent R estore the bonga shad, sardinella spp and other im portant stocks to curb potential fish food insecurity especially for the vulnerable populations Effort levels in sm all-scale fisheries adjusted to productivity as inform ed by w ell thought-out m anagem ent plans derived from regular stock assessm ent w ith the full participation of affected actors. C apacity capping strategy w hich m ay be used to achieve this policy w ould generate losses for w hich m ay require special support if their livelihoods are threatened w arranting consideration of restitution; Fishing com m unities and fish-w orkers have decent w orking conditions, live w ith dignity and realize their rights to livelihoods C apacity is m atched to sm all-scale fisheries productivity and stated clearly in developed stock m anagem ent plans derived from regular stock assessm ent/fram e surveys involving all stakeholders to ensure sustainable exploitation of sm all-scale fisheries and societal stability; Evidence of reduction effort to sustainable levels in sm all-scale fisheries. A ction taken to ensure that actors w ho lose out in the capacity capping process are considered for restitution in a form of alternative livelihoods; Fishing com m unities and fish-w orkers have decent w orking conditions, live w ith dignity and realize their rights to livelihoods (level of education, provision of health services, social protection m echanism ; access to alternative livelihoods etc.) - this m onitors protection of hum an rights of sm all-scale fisherfolks, their safety at seas, their fishing areas, also w hether fishing com m unities are able to leverage the benefits from fishing to m ake significant im provem ents in the attainm ent of basic livelihoods. TU R Fs instituted in sm all-scale fisheries m anaged by C B O s and N A A FO guided by principles of responsible fisheries resource m anagem ent Evidence of TU R Fs institution in sm all-scale fisheries, m anaged by C B O s/N A A FO guided by principles of responsible fisheries resource m anagem ent D evelop and apply effective m onitoring and enforcem ent m echanism s to deter, prevent and elim inate all form s of illegal and/or destructive fishing practices having a negative effect on m arine and inland ecosystem s. Evidence of effective m onitoring and enforcem ent m echanism s to deter, prevent and elim inate all form s of illegal and/or destructive fishing practices having a negative effect on m arine and inland ecosystem s Protect IEZ from industrial operations to ensure that legitim ate rights are not extinguished or infringed. Should infringem ent take place, fair valuation of infringem ent is carried out and appropriate and adequate com pensation considered according to The G am bia law Evidence of IEZ protection from industrial operations and tenure protected to ensure that legitim ate rights are not extinguished or infringed. Should infringem ent take place, there should be evidence of fair valuation of infringem ent and appropriate and adequate com pensation considered according to national law . M ainstream sm all-scale fisheries in the form al econom y and strengthen contribution to poverty alleviation food and nutrition security etc. Priortise sm all-scale fisheries in the national developm ent plan, its contribution to national econom y is clearly/specifically reflected and it is integrated in poverty reduction policy at the national level. Sm all-scale evident and prioritised in N D P, N ational Agricultural D evelopm ent Plan, N ational investm ents fram ew orks, etc.: Indicates prioritisation of sm all-scale fisheries in investm ent plans, poverty alleviation docum ents and other national strategy docum ents. D evelop Food and nutrition program m es (including infrastructural developm ent) around bonga shad and sardinella spp and other im portant stocks w ith the object of ensuring food and nutrition security for the population Evidence of food fish and nutrition project im plem ented to ensure food and nutrition security in food fish. This m onitors the im plem entation of food and nutrition projects w ith the aim of preventing insecurity in food fish and nutrition. Sm all-scale fisheries value chain is analysed, understood, value chain developm ent organised and facilitated in order to effectively derive the benefits therein using vale chain assessm ent tools w ith gender m ainstream ing an integral part of sm all-scale fisheries developm ent strategy Evidence that sm all-scale fisheries value chain has been analysed, understood, value chain developm ent organised and facilitated using value chain assessm ent tools w ith gender m ainstream ing an integral part of SSF developm ent strategy 32 33 4.2.3. Policy Area 3. Sustainable Aquaculture and Inland Fisheries Development Although the national per caput fish consumption of 28.4kg for The Gambia far outweighs the African average of 8.4kg, the difference between coastal per caput fish consumption and that of the hinterland (of about 9kg) has always attracted the attention of policy makers. Logistical constraints for fresh fish distribution and unaffordability have been cited as crucial drawbacks. Consequently, aquaculture development has resurfaced and gained prominence in developmental discussions as a potential conduit via which food fish and nutrition security could be enhanced especially in the inland thereby alleviating poverty. This is so because, the aquaculture potential cannot be overstated given The Gambia endowment of natural capital in the form of suitable ecosystems for commercial aquaculture in The Gambia Basin. Accordingly, this policy as it relates to sustainable aquaculture development is designed to make full use of The Gambia comparative advantage in commercial aquaculture development and ensure food fish and nutrition security. The potential as an effort reduction mechanism in capture fisheries once aquaculture is fully developed is generally acknowledged. Aquaculture development in The Gambia is by no means a new practice as aquaculture was introduce in the 1970s when a collaborative effort between the Department of Fisheries, the Catholic Relief Services and the United States Peace Corps established small-scale Tilapia fish ponds in Bansang in 1979. Moreover, experimentation with commercial aquaculture with the Scan Gambia Shrimp Ltd., in Pirang in 1986 - which was taken over by West African Aquaculture Ltd (WAA) in 2000; the poly-culture trials in the Central River Region and the subsequent Taiwan Technical Mission (TTM) coupled with the Food and Agriculture Organization of the United Nations (FAO) assistance with the said trials; are all experiences from which future aquaculture development can draw. Previous works such as Dibba (2016)13 and Fisheries Department (2008)14 will serve useful purposes as aquaculture sector review by Dibba provides guidance to investment in aquaculture development whereas; the elements of the strategic framework specified by the Fisheries Department, if implemented, should result into the establishment of sustainable commercial aquaculture. The Fisheries Department submits the following objectives for the aquaculture sub-sector: 1. Meet local demand and assist in balancing trade in aquatic products. 2. Create employment opportunities in both urban and rural areas. 3. Improve efficiency of natural resource management. The aim of the Strategic Framework developed is to suggest the ways of developing sustainable aquaculture that achieves the above-stated objectives. The artisanal fisheries of The Gambia is categorised into two namely: 1. Off the Atlantic Coast of The Gambia 2. Along the River Gambia The inland fisheries component of the Fisheries of The Gambia constitutes all fishing operations along the River Gambia (category 2). The major fishing settlements along the River Gambia are Barra, Albreda, Bintang, Tendaba and Jarreng. The crucial role of fisheries in supporting livelihoods means that most Gambians live along the coast or the banks of the Gambia River. The fish species within The Gambia 13 Dibba, B. (2016). The Gambia - Aquaculture sector Review – Strategic Action Plan 2016 - 2020 14 Department of Fisheries (2008). Strategic Framework for the Development of Aquaculture in The Gambia 34 River system comprises of largely fresh water species like, the freshwater catfish, (Clarias spp.), tilapia (Oreochromis niloticus), the bony tongue (Heterotis niloticus), Gymnarchus (Gymnarchus niloticus). Anadromous species such as shrimps and many marine fish species needs estuarine ecosystem as transitional phase during spawning runs where they spend part of their life cycle to reproduce before returning to the sea to grow to maturity. The inland fisheries and aquaculture have the potential to stabilise the food fish security especially in the inland. 4.2.3.1. Policy Area Objective The policy objective is to; x Develop both commercial and non-commercial aquaculture using value chain approach that links Input supply to production, consumption and environmental safety in order to ensure viable aquaculture production for poverty reduction and food fish and nutrition security in The Gambia. x Develop and manage sustainable inland fisheries for poverty reduction and food fish and nutrition security. 4.2.3.2. Policy Area Outcome Aquaculture x Enabling environment created including development and implementation of relevant regulations x Areas with the greatest bio-physical potential capacity for aquaculture growth identified taking into account socio-economic parameters such as expressed interest in aquaculture by local residents, concentration of potential producers in the area and the presence of facilities. x Type of aquaculture defined - promoting both non-commercial farmers (with low input low output aquaculture systems for rural farmers) and commercial producers ranging from small, medium or large-scale entrepreneurs that are active participants in the market. x Economic analysis conducted and results shared on optimum aquaculture business for all types of aquaculture systems x Robust extension service developed for an efficient outreach system and technical information sharing x Suitable production systems identified with respect to appropriate technologies, information sharing with prospective investors x Enhanced availability and accessibility to improved productive inputs and services (feeds, seeds and capital) x Food and nutrition security promoted x Safe environment for aquaculture production ensured and private farming interventions encouraged with monitoring control and evaluation systems in place x Research promoted into fish diseases control, hatchery development and management, quality fingerlings production and feed production with full participation of producers x Aquaculture infrastructure provided to meet basic infrastructure needs for aquaculture development such as roads, electricity to fish farming areas, water, schools, hospitals and telecommunication/radio network systems. x Financing/investment strategy developed for the promotion of financial instruments such as fisheries development banks, guarantee funds, microcredit institutions and through the non- financial private sector investments. x Quality assurance and standards developed for aquaculture product labeling and traceability through certification programme for good aquaculture practices. x Market information and infrastructure developed and made accessible x Formation of producer’s organisation promoted to defend mutual interest and facilitate access to inputs and markets. 35 x Skills development plan finalised and implemented to fittingly address competencies and skills development in aquaculture education and training. x Conflict resolution mechanisms in place for resolution of conflicts from land demand for aquaculture Inland Fisheries x Stock of inland fisheries assess and economic value estimated x Reference points such as MSY and MEY determined x Selectivity experiment conducted and appropriate fishing nets and mesh sizes for all species determined x Optimum capacity determined and implemented via TURFs in a co-management system x Infrastructural development such fish receiving centres and processing units such as improved smoking kilns x Management plans developed for species complete with harvesting strategies and tactics 4.2.3.3. Monitoring Indicators Aquaculture x Evidence of established and clear regulations on userrights to land and water; movement of aquatic organism; use of alien species; pollution; ESHIA; input production and official control. Use to monitor and ensure that enabling environment is provided that that the production systems at all levels are regulated. x Map of areas with greatest bio-physical and socio-economic potential for all categories of aquaculture production made available. x Evidence of suitable and technologies made available via robust outreach systems: use to monitor the efficacy of technologies used and the extension system delivering them x Proportion of aquaculture contribution to agricultural/ national GDP and evidence of production system subjected to economic analysis: used to monitor the overall contribution of aquaculture to national income and profitability of production system. x Proportion of products meeting established quality standards and certification programmes x Changes in basic infrastructure for aquaculture development: used to monitor availability of basic infrastructure needed for aquaculture development x Changes in accessibility of investment finance for aquaculture; in quality and diversity of available and affordable fish feed in the market; in number of hatchery and quality fingerlings:: used to monitor availability of quality feed, seed and capital x Change in price of aquaculture fish: use to monitor aquaculture food fish affordability x Change in production levels: used to monitor whether production is decreasing, static or increasing as it influences availability. x Changes in nutrition status of vulnerable groups especially children x Changes in availability and accessibility of market information on (price, available processing and preservation, supply/demand, market channels) and infrastructure (roads, communication storage facilities): Used to monitor adequacy of market information and infrastructure x Change in disease incidence: monitors reduction or increase in disease occurrence x Change in environmental integrity: monitors whether aquaculture is practiced sustainably. x Change in competencies and skills developed in aquaculture: Monitor efficacy of education and training in aquaculture x Evidence of promoting low input, low output systems for rural farmers in The Gambia where capital sourcing for small medium enterprises (SMEs) is still a challenge. 36 x Number of organised producer’s organisations recognised - functioning to defend mutual interest and facilitate access to markets and inputs: Inland Fisheries x Biomass, optimum harvest with their economic value figures available. Used to monitor the maintenance of health stock levels x Harvest and effort levels for MSY and MEY available. Used to monitor targeted reference point and determine allowable catches x Legal netting material used in fisheries with appropriate mesh sizes. Use to monitor sustainable catches and prevention of growth and recruitment overfishing x Effort level maintained at optimum capacity with instituted TURFs in a co-management system. Used to monitor economic overfishing x Fish receiving centres and processing units such as improved smoking kilns available. Used to monitor reduction of post-harvest losses x Management plans developed for species complete with harvesting strategies and tactics. Used to monitor sustainable resource management 37 T able 8. Policy A rea 3. Sustainable A quaculture and Inland Fisheries D evelopm ent Policy A rea Policy O bjective Policy O utcom e M onitoring Indicator Sustainable A quaculture D evelopm ent D evelop both com m ercial and non- com m ercial aquaculture using value chain approach that links Input supply to production, consum ption and environm ental safety in order to ensure viable aquaculture production for poverty reduction and food fish and nutrition security in The G am bia. Enabling environm ent created including developm ent and im plem entation of relevant regulations Evidence of established and clear regulations on userrights to land and w ater; m ovem ent of aquatic organism ; use of alien species; pollution; ESH IA; input production and official control. U se to m onitor and ensure that enabling environm ent is provided and that the production system s at all levels are regulated. A reas w ith the greatest bio-physical potential capacity for aquaculture grow th identified taking into account socio- econom ic param eters such as expressed interest in aquaculture by local residents, concentration of potential producers in the area and the presence of facilities. Type of aquaculture defined - prom oting both non-com m ercial farm ers (w ith low input low output aquaculture system s for rural farm ers) and com m ercial producers ranging from sm all, m edium or large-scale entrepreneurs that are active participants in the m arket. M ap of areas w ith greatest bio-physical and socio-econom ic potential for all categories of aquaculture production m ade available. Evidence of prom oting low input, low output system s for rural farm ers in The G am bia w here capital sourcing for sm all m edium enterprises (SM Es) is still a challenge. Econom ic analysis conducted and results shared on optim um aquaculture business for all types of aquaculture system s Proportion of aquaculture contribution to agricultural/ national G D P and evidence of production system subjected to econom ic analysis: used to m onitor the overall contribution of aquaculture to national incom e and profitability of production system . Suitable production system s identified w ith respect to appropriate technologies, inform ation sharing w ith prospective investors via robust extension service developed for an efficient outreach system and technical inform ation sharing Evidence of suitable and technologies m ade available via robust outreach system s: use to m onitor the efficacy of technologies used and the extension system delivering them Enhanced availability and accessibility to im proved productive inputs and services (feeds, seeds and capital). Financing/investm ent strategy developed for the prom otion of financial instrum ents such as fisheries developm ent banks, guarantee funds, m icrocredit institutions and through the non-financial private sector investm ents. C hanges in accessibility of investm ent finance for aquaculture; in quality and diversity of available and affordable fish feed in the m arket; in num ber of hatchery and quality fingerlings: used to m onitor availability of quality feed, seed and capital especially finance. Safe environm ent for aquaculture production ensured and private farm ing interventions encouraged w ith m onitoring control and evaluation system s in place C hange in environm ental integrity: m onitors w hether aquaculture is practiced sustainably. R esearch prom oted into fish diseases control, hatchery developm ent and m anagem ent, quality fingerlings production and feed production w ith full participation of producers C hange in disease incidence; availability of quality feed and seeds: M onitors reduction or increase in disease occurrence and availability, accessibility and affordability of feed and seed A quaculture infrastructure provided to m eet basic infrastructure needs for aquaculture developm ent such as roads, electricity to fish farm ing areas, w ater, schools, hospitals and telecom m unication/radio netw ork system s. C hanges in basic infrastructure for aquaculture developm ent: used to m onitor availability of basic infrastructure needed for aquaculture developm ent Q uality assurance and standards developed for aquaculture product labeling and traceability through certification program m e for good aquaculture practices. Proportion of products m eeting established quality standards and certification program m es 38 4.2.4. Policy Area 4. Competitive Fish Trade and Marketing Fish must be presented in a form, size and shape with the required quality and safety acceptable to the market as prescribed by international standards. The demands made by the market must be addressed by developing the capacity of the industry to respond. Although the total economic value of the Fisheries of The Gambia has not be determine which would allow the estimation of economic rent, it is discernable that the Fisheries of the Gambia is very important in the economic development of the country. UNTAG (2014)15 indicates that exports totaled 3,563 tonnes (mostly artisanal catch) in 2010 valued at, $3,334,702. Challenges include; a lack of basic and sector–specific infrastructure to respond to market demands, lack of investments and minimal private sector incentives. A fishing harbour in Banjul and fish receiving centres at a number of points along the River Gambia should improve the official control situation in the fisheries of The Gambia. The value of fish exports from The Gambia is believed to be severely underestimated, as most fish caught in Gambian waters is landed in foreign countries, and hence not accounted for in Gambian trade statistics. Provision of sector specific infrastructure would enhance MCS and improve landing statistics. Moreover, such infrastructure would reduce post-harvest losses and increase shelf-life of fisheries products; ensure adequate supply of fish and fish products by applying effective and sustainable preservation, processing and storage methods; ensure prevalence of internationally accepted standards in infrastructure and operations of fish processing establishments; and, improve the quality of fish and fishery products and ensure compliance with international standards on SPS and quality assurance. It is important to take the following into account for the promotion of competitive fish trade and marketing: demand– side interventions to build capacity in the private sector at all levels to take up opportunities; supply–side interventions to create incentives to encourage responsible investment and development; and entrepreneurial interventions to facilitate integrated approaches. This approach has been used to suggest the required institutional capacity building and technical or infrastructure investments. The objective of the trade policy of the Gambia16 also informs this policy area which include; to attract investment in the sector as well as improve handling and processing of fish and fishery products to conform to international standards for improved market access. In order to achieve this, the trade policy suggests the following measures: 1. Continue to invest in the sector to improve fisheries infrastructure particularly the landing sites; 2. Ensure compliance with international standards on SPS and quality assurance; 3. Encourage the adoption of appropriate techniques/technologies to enhance production and productivity, reduce post -harvest losses, improve the quality of products, product development and increase exports; 4. Adopt measures to facilitate access to finance and the use of appropriate technologies for use by operators in the sector; 5. Provide incentives to attract more private investment in the industrial fishing sector as well as promote the processing of fish for exports. 4.2.4.1. Policy Area Objectives It is important to take action so as to; 15 UNTAG (2014). The fisheries sector in the Gambia: trade, value addition and social inclusiveness, with a focus on women. http://unctad.org/en/PublicationsLibrary/ditc2013d4 en.pdf 16 The Gambia Trade Policy 2011. Ministry of Trade and Regional Integration (GOTG) 39 x Fully derive the benefits accruable from the fisheries and aquaculture of The Gambia by attracting investment in the sector. x Improving handling and processing of fish and fishery products to conform to international standards for improved market access. x Conduct competitive trade and marketing in a manner that is acceptable and sustainable. 4.2.4.2. Policy Area Outcome Demand–side interventions: Increasing incentives for fishing industry. Improved intra and inter regional trade x Developed appropriate certification process for fish products for export as demanded by international standards and adopted recognised international standards for suppliers to ensure responsibility in their own practices and operations x Empower the Food Safety Authority and National Notification Authority to ensure safety and give early warnings x Regional trade protocols complied with by establishing mechanisms that address factors hindering trade at regional and domestic levels (e.g. lack of efficient and effective reliable regional shipping fleets/air transport) x Fish trade policies made coherent with other policies by building regional marketing capacity enhanced through strengthened trade monitoring facilities (e.g. INFOSA). x Quality and Safety of fish products conform to international trade standards. Supply–side interventions: Increasing the capacity of fishing industry to respond to buyers demand. Increased competitiveness for The Gambia fish and fishery products x Infrastructural investment made as a way of business environment development standards and supportive technology established so that fisheries marketing systems including such infrastructure as national fisheries laboratory for standardization of fishery products are in agreement with international guidelines for certification of healthy fish and fishery products meant for export and local consumption. x Clear and realistic information about the social and environmental market demands for trade facilitation obtained; x Incentives provided to support emerging aquaculture sector e.g. incentives for infant enterprise, value addition, application of globally and regionally accepted best practices x Capacity built in the sector through technical and other support. x Fishing harbor and fish processing factories for establishing ownership and adding value. x Fish receiving centers provided that are directly managed by small scale fisheries actors Entrepreneurial approaches x Developed alternative market for new products from both fisheries and aquaculture as a way of facilitating direct marketing, particularly at a sub-regional level in West Africa. x Competitiveness ensured through reducing value chain costs of production, processing and distribution. x Fish weight measurement standardised to kilograms in the entire small-scale fisheries sector x Appropriate pricing conditions included for value addition across value chain segments including safety and quality requirements and market-led measures, for example eco-labeling, and certification, x Conduct reliable valuation of tenure rights which informs taxation based on the most rational method of charging fees - base on a percentage of the value of the catch as it has the most direct bearing on the quantity and value of the resource harvested 40 x Trade and marketing consistent with Fisheries Competitiveness Index (FCI) to ensure that fisheries are well managed and supported by appropriate infrastructure and prudent management 4.2.4.3. Monitoring Indicators x Standards developed for suppliers and enforced to ensure fish safety and quality across the fish value chain. x Acceptable products traded in the international market. x Kilogram adopted as the unit of measurement in small-scale fisheries x Fishing harbour complex completed with attendant facilities, landing clusters built and equipped, road conditions improved and the cold storage facilities available at Banjul International Airport for fish products upgraded: used to establish ownership over resource as transshipment will now be done in port and appropriate royalties paid x Fishing testing laboratory for export markets fully operational and upgraded x Changes in number of trained personnel: used to monitor capacity building in the private sector and all levels to take advantage of opportunities x Intra-regional trade intensity share: ratio of intra-regional trade share to the share of the world trade with the region, calculated using trade data. x Changes in Trade growth: percentage change in the value of total trade relative to the previous year. x Evidence of charging fees based on a percentage of the value of the catch as it has the most direct bearing on the quantity and value of the resource harvested and thus, taxation x Changes in Trade share: sum of value of exports and imports. x Changes export growth: the percentage change in the value of exports relative to the previous year. x Evidence of Food Safety Authority and National Notification Authority created to ensure safety and give early warnings x Changes in export intensity index: the ratio of the trading partner’s share to a country’s /regions total exports and the share of world exports going to the same trading partner trading partner. x Change in FCI ranking: The Fisheries Competitiveness Index (FCI) identifies factors that affect the competitiveness of the fish industry within different countries. The index allows country to identify where action should be taken to improve competitiveness in its fish industry. x Fish processing factory operational x Access fees re-evaluated in the light of regional and world market levels x Incentives provided for infant enterprises, value addition, application of accepted best practices 41 T able 9. Policy A rea 4. C om petitive Fish T rade and M arketing Policy A rea Policy O bjective Policy O utcom e M onitoring Indicator C om petitive Fish Trade and M arketing Fully derive the benefits accruable from the fisheries and aquaculture of The G am bia by attracting investm ent in the sector. D em and–side interventions: Increasing incentives for fishing industry. Im proved intra and inter regional trade C ertification process stream lined and universally accepted; C hanges in regional fish trade; C hanges in regional fish export grow th: D eveloped and m aintained appropriate certification process as dem anded by international standards; adopted recognised standards for suppliers Proof of developed and m aintained standards for suppliers and enforced to ensure fish safety and quality R egional trade protocols com plied w ith by establishing m echanism s that address factors hindering trade at regional and dom estic levels C hanges in com pliance w ith regional trade protocols. Fish trade policies m ade coherent w ith other policies by building regional m arketing capacity (e.g. IN FO SA , W TO , SPS) C hanges in coherence of trade policies w ith other policies Q uality of fish products conform to international trade standards. A ccredited testing laboratory that can for export fully operational and acceptable products traded globally Em pow er Food Safety A uthority and N ational N otification A uthority to ensure safety and give early w arnings Evidence of Food Safety A uthourity and N ational N otification A uthority created for safety and early w arning Im proving handling and processing of fish and fishery products to conform to international standards for im proved m arket access. Supply–side interventions: Increasing the capacity of fishing industry to respond to buyers dem and. Increased com petitiveness of fish and fishery products. C hanges in the capacity of fishing industry to respond to buyers dem and equipped w ith sector specific infrastructure Infrastructural investm ent m ade as a w ay of business environm ent developm ent C hanges in road conditions, schools, hospital in fishing and aquaculture com m unities Standards and supportive technology established so that fisheries m arketing system s are in agreem ent w ith international guidelines for certification of healthy fish and fishery products. R egulations regarding Food Safety standards, and N ational N otification A uthority w ith a contact points to notify the W TO /SPS C om m ittee on issues w ith Fishery products certification. N ational fisheries laboratory for standardization of fishery products are in agreem ent w ith official control international guidelines C lear and realistic inform ation obtained w ith inform ation m anagem ent system s in place; Incentives provided to support em erging aquaculture sector C lear and realistic inform ation on m arket dem ands for fish inform s pricing condition; Incentives provided for value addition, use best practices C apacity built in the sector through technical and other support; Fishing harbor and Fish processing factories provided C hanges in num ber of trained personnel; Fishing harbour com plex com pleted; Fish processing factory operational Fish receiving centers provided that are directly m anaged by sm all-scale fisheries actors Facilities provided that caters for sm all-scale fisheries actors C onduct com petitive trade and m arketing in a m anner that is acceptable and sustainable. Entrepreneurial approaches: D eveloped alternative m arket for new products from both fisheries and aquaculture. C om petitiveness through reducing value chain costs of production, processing and distribution. C hanges in regional trade grow th: C hanges in the cost of production and distribution Fish w eight m easurem ent standardised to kilogram s in the entire sm all-scale fisheries K ilogram adopted as the unit of m easurem ent in sm all- scale fisheries A ppropriate pricing conditions included for value addition across value chain segm ents. A ccess fees and prices re-evaluated in the light of regional and w orld m arket levels. C onduct reliable valuation of tenure rights w hich inform s taxation based on the m ost rational m ethod of charging fees - base on a percentage of the value of the catch as it has the m ost direct bearing on the quantity and value of the resource Evidence of charging fees based on a percentage of the value of the catch - the m ost direct bearing on the quantity and value of the resource harvested 42 4.2.5. Policy Area 5. Sustainable Industrial Fisheries and Fisheries on the High Seas Industrial fisheries Industrial fisheries of The Gambia like many small West African countries is dominated by foreign owned vessels, with nationals acting as agents and employing limited numbers of Gambians as unskilled labourers. Industrial fisheries is concentrated along the Atlantic coastline and a peculiar characteristic of the sub-sector is that catches are landed abroad with its accompanying capital flight and catch statistics undervaluation consequences. However, although the majority of fish processing plants are Gambia owned, industrial catches are inadequate to provide a supply that economically justifies the operations of the factories at full capacity. In fact, industrial fisheries account for only 10 percent of the total national fish consumption, and for only an estimated 20 percent of the locally processed fish. Thus, the fall-back position is on small-scale fisheries for supplies of high value fish, shrimps and cephalopods for processing and export. This demand, couple with the demand from diaspora markets, renders small-scale fisheries very commercialised in The Gambia. Certainly, The Gambia small-scale fisheries will not fit in the subsistence characterisation of small-scale fisheries used in definitions of the sub-sector. Given the high demand, this raises unsustainability questions towards which the policy on small-scale fisheries must be sensitive. The lack of fishing and storage facilities, financial difficulties and high energy cost are some of the inadequacies holding back the industrial fisheries from the achieving the full benefits derivable. High sea fisheries High seas fisheries are distributed in waters outside the areas of national jurisdiction. The high seas fisheries stocks are highly migratory resources or they are straddling stocks. The governance of high seas fishing, are implemented under the conditions laid down in the UN Convention on the Law of the Sea (UNCLOS) of 1982 and in the 1995 Agreement for the Implementation of the Provisions of UNCLOS relating to the Conservation and Management of Straddling Fish Stocks and Highly Migratory Fish Stocks (also known as the UN Fish Stocks Agreement). Policy guidance is required for fisheries on the high seas because UNCLOS protect freedom to fish in the high sea by all nations in the world but countries are subjected to a number of conditions. These conditions include; duties of flag states (Article 94), the duty to cooperate against piracy (Article 100), the rights of hot pursuit (Article 111), the right to fish in the high seas (Article 116), the duty of collaboration and negotiations for living resources management including through regional fishery bodies (Article 118), and the conservation of the living resources based on the best scientific evidence available and taking account of interdependence between stocks (Article 119). Moreover, high seas resources are usually managed through RFMOs responsible for collection of fishery statistics; assessment of the state of resources; analyses of management options and provision of scientific advice for management; management decisions; and monitoring. Thus, it is important to put The Gambia rights and duties under UN Fish Stocks Agreement into effect. This could be done by having a greater say, actively participating in RFMO processes/agenda and increasing benefits from high sea fisheries in a sustainable manner whilst keeping its obligation. 4.2.5.1. Policy Area Objectives Industrial fisheries The primary objectives of this policy are to ensure that: x Sustainable development and management of industrial fisheries with the full participations of Gambians x Develop the capacity of Gambians to fill at least 30% of the skill labour positions on-board fishing vessels x Optimise fisheries resources rent (licenses etc) obtainable x Create employment opportunities from onshore value addition activities 43 Fisheries on the high seas It is important to take action for; x Active participation in RFMO processes and agenda x Increase participation and benefits from high seas fisheries x Achieve greater say in high seas fisheries 4.2.5.2. Policy Area Outcome Industrial Fisheries x Stock of industrial fisheries assessed regularly and the full economic value and annual resource rent obtainable determined x Gambian private sector participation in fishing encouraged x Fishing operations laws enforced to facilitate landings and supply processing facilities x Capacities of Gambians developed in fishing operations and ensure that at least 30% of skilled workers are Gambians x Licenses reflect the scarcity of fish and value of the catch to optimise resource rents and fees; x Purse seining and long lining etc encouraged to ensure optimal exploitation of the pelagic fishery; x By-catches reduction and utilisation projects implemented and linked to food and nutrition security ventures x Selectivity studies and surveys undertaken periodically to review existing minimum fishing gear mesh size regulations and regulations on fishing zones limitations x Undertake periodic surveys to ascertain the level of industrial fishing effort on various aspects of the marine fishery, species biomass levels, regeneration trends and threats of depletion; x Joint Maritime Committee assembled to collaboratively improve MCS of industrial fishing operators; x Cooperation with other countries strengthened for the management of shared stocks (straddling and migratory stocks); x Fish Processing Establishments generate employment from value addition activities and they are made compliant with international standards x Regulations enforced to make fishery products health conditions and factory infrastructures, operations and maintenance compliant with international standards. Fisheries on the high seas x Effective participations of The Gambia in international conventions and access to high seas. This should ensure participation of The Gambia in international conventions to improve the capacity to understand and implement the provisions. x Dues to fisheries institutions paid timely x Strengthen alignment of donor and partner effort. Ensure that development efforts in the policy area are aligned with the policy objective of the Policy Framework for Fisheries and Aquaculture in The Gambia. x Benefits accrued from high seas fisheries to The Gambia. This is achieved by ensuring that high seas resource exploitation investment in post- harvest infrastructure (such as harbour) that accrue significant revenues, enhances sustainable resource utilization and equitable distribution of fisheries benefits. 44 x Cooperation for high sea fisheries management on transboundary matters. Ensure deliberate sub- regional, regional and international cooperation for the necessary collaboration and negotiations for living resources management including through regional fishery bodies. x Resource sustainability and secured economic returns is the basis for regional access policy on minimum terms and conditions for granting fishing access to DWFN. 4.2.5.3. Monitoring Indicators Industrial Fisheries x Stock size, economic value of stock and annual rent accruable determined. Used to monitor sustainable catch levels x Evidence of Gambian private sector participation in fishing. Used to monitor local participation x Processing facilities have adequate fish supply to run establishment at full capacity. x At least 30% of skilled worker in fishing vessels are Gambian. Used to monitor Gambian engagement in industrial fishing x Evidence of optimum rent obtained. Used to monitor exploitation efficiency x Evidence of exploiting pelagic species at optimum catch levels. Used to monitor the full exploitation of underexploited species x By-catch reduced and utilisation programmes fed into fish and nutrition security programmes. Used to monitor bycatch reduction and utilisation programmes x Appropriate mesh size as determined by experiment used and fishing zone limitations enforced. Used to monitor the application of responsible fishing practices x Effort maintained at FMEY and sustainable ensured. Used to monitor the application of sustainable effort x Joint Maritime Committee in place with evidence of improved MCS of industrial fishing operators. Used to monitor collaborative MCS x Evidence of International cooperation for the management of shared stocks (straddling and migratory stocks). Used to monitor international cooperation in shared stock management x Number of employment created by fish processing establishments from value addition activities. Used to monitor job creation in value addition x Fish product in sizes, shapes and form compliant with international standards. Used to monitor official control compliance with international standards Fisheries on the high seas x Arrangements in place to strengthen the capacity of The Gambia for active participation and contribution in meetings of RFMOs on issues such as quota allocation processes, formation of resolutions, compliance and making significant inputs to revisions of conventions and agenda of meeting of RFMOs. x Dues to fisheries institutions at all levels paid timely to enhance effective and productive participation in RFMO meetings x Developed strategy to significantly harness the benefits of the fisheries of The Gambia via mechanism that promotes effective and wider participation and investment for high seas fisheries. x Enhanced benefits accrual to The Gambia from exploitation of high seas resources. x Increased and consolidated The Gambia say in the governance and management of high seas fisheries. 45 x Evidence of provision made for Cooperation on high sea fisheries management on transboundary matters for active roles in intergovernmental cooperation on issues relating to high seas fisheries management. x Mechanisms instituted to coordinate The Gambia position in international fora in line with AU policy framework and reform strategy (PFRS) principles and provisions in establishing relationship and engaging donors and partners. x Minimum terms and conditions exist and are implemented: i.e. resource sustainability and secured economic returns - used to monitor resource sustainability and secured economic returns - are the basis for regional access policy for granting fishing access to DWFN 46 47 T able 10. Policy A rea 5. Sustainable Industrial Fisheries and Fisheries on the H igh Seas Policy A rea Policy O bjective Policy O utcom e M onitoring Indicator Industrial Fisheries of The G am bia Sustainable developm ent and m anagem ent of industrial fisheries w ith the full participations of G am bians Stock of industrial fisheries assessed regularly and the full econom ic value and annual resource rent obtainable determ ined Selectivity studies and surveys undertaken periodically to review existing m inim um fishing gear m esh size regulations and regulations on fishing zones lim itations U ndertake periodic surveys to ascertain the level of industrial fishing effort on various aspects of the m arine fishery, species biom ass levels, regeneration trends and threats of depletion; Joint M aritim e C om m ittee assem bled to collaboratively im prove M C S of industrial fishing operators; C ooperation w ith other countries strengthened for the m anagem ent of shared stocks (straddling and m igratory stocks); Stock size, econom ic value of stock and annual rent accruable determ ined. U sed to m onitor sustainable catch levels Appropriate m esh size as determ ined by experim ent used and fishing zone lim itations enforced. U sed to m onitor the application of responsible fishing practices Joint M aritim e C om m ittee in place w ith evidence of im proved M C S of industrial fishing operators. U sed to m onitor collaborative M C S Evidence of International cooperation for the m anagem ent of shared stocks (straddling and m igratory stocks). U sed to m onitor international cooperation in shared stock m anagem ent Effort m aintained at FM EY and sustainable ensured. U sed to m onitor the application of sustainable effort D evelop the capacity of G am bians to fill at least 40% of the skill labour positions on- board fishing vessels G am bian private sector participation in fishing encouraged C apacities of G am bians developed in fishing operations and ensure that at least 40% of skilled w orkers are G am bians Evidence of G am bian private sector participation in fishing. U sed to m onitor local participation At least 40% of skilled w orker in fishing vessels are G am bian. U sed to m onitor G am bian engagem ent in industrial fishing O ptim ise fisheries resources rent (licenses etc) obtainable Licenses reflect the scarcity of fish and value of the catch to optim ise resource rents and fees; Purse seining and long lining etc encouraged to ensure optim al exploitation of the pelagic fishery; Evidence of optim um rent obtained. U sed to m onitor exploitation efficiency Evidence of exploiting pelagic species at optim um catch levels. U sed to m onitor the full exploitation of underexploited species C reate em ploym ent opportunities from onshore value addition activities Fish Processing Establishm ents generate em ploym ent from value addition activities and they are m ade com pliant w ith international standards R egulations enforced to m ake fishery products health conditions, factory infrastructures, operations and m aintenance com pliant w ith international standards. Fishing operations law s enforced to facilitate landings and supply processing facilities B y-catches reduction and utilisation projects im plem ented and linked to food and nutrition security ventures N um ber of em ploym ent created by fish processing establishm ents from value addition activities. U sed to m onitor job creation in value addition Fish product in sizes, shapes and form com pliant w ith international standards. U sed to m onitor official control com pliance w ith international standards Processing facilities have adequate fish supply to run establishm ent at full capacity. By-catch reduced and utilisation program m es fed into fish and nutrition security program m es. U sed to m onitor bycatch reduction and utilisation program m es Increase participation and benefits from high seas fisheries B enefits accrued from high seas fisheries to The G am bia. This is achieved by ensuring that high seas resource exploitation investm ent in post-harvest infrastructure (such as harbour) that accrue significant revenues, enhances sustainable resource utilization and equitable distribution of fisheries benefits. D eveloped strategy to significantly harness the benefits of the fisheries of The G am bia via m echanism that prom otes effective and w ider participation and investm ent for high seas fisheries. Enhanced benefits accrual to the G am bia from exploitation of high seas resources. 48 4.2.6. Policy Area 6: Sub-Regional, Regional and International Cooperation Fisheries management is contextualised in a global environment of international instruments and conventions, such as, but not limited to, UNCLOS, UNFSA, CCRF and PSMA. The Gambia is one of the founding members of the Economic Community of West African States (ECOWAS) and Sub-Region Fisheries Commission (SRFC). Apart from being a member of FAO of UN, CECAF and ATLAFCO it is also a signatory to several international conventions such, the Convention on Biodiversity, International Union for the Conservation of Nature, United Nations Convention on Law of the Sea etc. This fisheries policy framework is aligned with international fisheries principles. For example, this policy framework takes into account provisions of AU’s PFRS and other global instruments such as FAO-CCRF; UN Sustainable development goals - to ensure coherence and consistency. Cognizance of the fact that fisheries are shared resources, regional/sub-regional integration schedule should provide for harmonisation of policies and management measures and strong cooperation and collaboration between RECS and RFBs. Sustainable management of fisheries resources, especially when a considerable portion of the stocks are shared between neighboring countries, can only be implemented through cooperation and harmonization of strategies. It is thus not surprising that the primary objectives of the SRFC include: long term harmonization of policies of member states regarding preservation, conservation and exploitation of their marine living resources; and reinforcement of member states cooperation for the benefit of their respective populations. Consequently, effective machinery must be in place for cooperation between the RECs and RFBs. Review and drafting of international conventions and processes on fisheries and aquaculture should be informed by regional positions on the issues (e.g. AU’s PFRS/AU Aquaculture action plan) - aware of important international instruments for sustainable fisheries management and identifies the need for their internalisation. Good governance must be applied in the identification, engagement and participation process of relevant stakeholders in fisheries and aquaculture. Additionally, contemporary principles of fisheries management such as recognition of rights of different fishers and rules to avoid conflicts between different fisheries should be pursued. 4.2.6.1. Policy Objective: Action must be taken to; x Reinforce bilateral, sub-regional, regional and international cooperation, and develop coordinated mechanisms among RECs, RFBs and LME-based commissions to ensure coherence of fisheries policies and aquaculture development and their adoption and adaptation. x Strengthen sub-regional, regional and international cooperation with respect to the management of fisheries resources with particular reference to shared stocks; x Formulate and implement national management measures in consonance with the current principles of sub-regional and international conventions regarding fisheries protection, preservation, exploitation and utilization. 4.2.6.2. Policy Outcome The following outcomes should be expected; x International fisheries issues at regional levels are coherent and harmonised x RECs and RFBs are important institutions in fisheries management within the framework of regional economic and political integration agenda x Cooperation and collaboration between RECs and RFBs/RFMOs strengthened x Conflict resolution mechanism instituted and operational x Timely payment of financial obligations in support of regional and sub-regional bodies (e.g. SRFC, ECOWAS, AU) x Sub-regional and international resolutions on harmonization of fisheries policies and management strategies adopted; 49 x Professional study tours in the sub-regional, regional and international circles undertaken; x Information adopted from sub-regional, regional and international levels disseminated to national stakeholders to increase awareness and participation in fisheries matters; x Joint surveillance patrols of sub-regional fisheries waters through the SRFC and bi-lateral agreements supported to enforce regulations and protect the resources; x Joint research between neighbouring countries and international organizations supported to assess the status of sub-regional resources and the marine ecosystem at large; x Sub-regional, regional trade in fish and fishery products encouraged; x Appropriate equipment, machinery, materials and transfer of technology acquired through sub- regional/regional and international cooperation to enhance capacity building and strengthen cooperation. 4.2.6.3. Monitoring Indicator x Transparency, accountability and effective participation of stakeholders are characteristic of RECs and RFBs in Africa x Degree of coherence and harmony in fisheries policies and development strategies in the region and sub-region x Degree/strength of cooperation and collaboration between RECs and RFBs/RFMOs x Role and values of fisheries and aquaculture in regional social, economic and political integration clearly defined with enhanced profile x Strategy (Mechanisms) for preventing and resolving regional conflicts are in place x Evidence of timely payment of financial obligations to regional and sub-regional bodies x Number of sub-regional and international resolutions on harmonization of fisheries policies and management strategies adopted; x Number of professional study tours undertaken and lessons learnt implemented from the sub- region, region and international arena; x Extent of information dissemination from sub-regional, regional and international levels to national stakeholders; x Number of joint surveillance patrols of sub-regional fisheries undertaken to protect the resources; x Number of joint research undertaken between neighbouring countries and international organizations with results used for informed decision making; x Proportion of trade in fish and fishery products in sub-region and region; x Proportion of appropriate equipment, machinery, materials and transfer of technology acquired through sub-regional/regional and international cooperation. 50 T able 11. Policy A rea 6: Sub-R egional, R egional and International C ooperation Policy A rea Policy O bjective Policy O utcom e M onitoring Indicator Sub-R egional, R egional and International C ooperation R einforce bilateral, sub-regional, regional and international cooperation, and develop coordinated m echanism s am ong R EC s, R FB s and LM E-based com m issions to ensure coherence of fisheries policies and aquaculture developm ent and their adoption and adaptation. Fisheries issues at sub-regional, regional and international levels are coherent and harm onised D egree of coherence and harm ony in fisheries policies and developm ent strategies in the region and sub-region D egree/strength of cooperation and collaboration betw een REC s and RFBs/RFM O s R EC s and R FB s are im portant institutions in fisheries m anagem ent w ithin the fram ew ork of regional econom ic and political integration agenda R ole and values of fisheries and aquaculture in regional social econom ic and political integration clearly defined w ith enhanced profile C onflict resolution m echanism instituted and operational Transparency, accountability and effective participation of stakeholders are characteristic of R EC s and R FB s in A frica; Strategy (M echanism s) for preventing and resolving regional conflicts are in place Tim ely paym ent of financial obligations to regional and sub- regional bodies Evidence of tim ely paym ent of financial obligations to regional and sub-regional bodies A ppropriate equipm ent, m achinery, m aterials and transfer of technology acquired through sub-regional/regional and international cooperation to enhance capacity building and strengthen cooperation. Proportion of appropriate equipm ent, m achinery, m aterials and transfer of technology acquired through sub- regional/regional and international cooperation. Sub-regional and international resolutions on harm onization of fisheries policies and m anagem ent strategies adopted; N um ber of sub-regional and international resolutions on harm onization of fisheries policies and m anagem ent strategies adopted; Strengthen sub-regional, regional and international cooperation w ith respect to the m anagem ent of fisheries resources w ith particular reference to shared stocks; Professional study tours in the sub-regional, regional and international circles undertaken; N um ber of professional study tours undertaken and lessons learnt im plem ented from the sub- region, region and international arena; Joint research betw een neighbouring countries and international organizations supported to assess the status of sub-regional resources and the m arine ecosystem at large; N um ber of joint research undertaken betw een neighbouring countries and international organizations w ith results used for inform ed decision m aking; Joint surveillance patrols of sub-regional fisheries w aters through the SR FC and bi-lateral agreem ents supported to enforce regulations and protect the resources; N um ber of joint surveillance patrols of sub- regional fisheries undertaken to protect the resources; Sub-regional, regional trade in fish and fishery products encouraged; Proportion of trade in fish and fishery products in sub-region and region; 51 4.2.7. Policy Area 7: Human Capital Development in Fisheries and Aquaculture The fisheries of The Gambia lacks the required manpower in the various specialties to man the sustainable development of contemporary capture fisheries and aquaculture. The same could be said about other interested parties and their professional organisations in the fisheries sector. This paucity of human capacity is one factor responsible for the under-achievement of the fisheries and aquaculture sector. Perhaps, this is because there is no institution of training both at the middle-level and tertiary level in The Gambia. Whilst the experienced cadres of the sector were abruptly terminated for unexplained reasons by the former regime, others have reached retirement age. Consequently, young promising officers missed out on the necessary mentoring. Besides, customarily, the emphasis in fisheries resource stewardship was on the “fish”; but in recent times, the focus is on the complex social, economic, political and legal factors that drive the behaviours of fishermen as individuals and fisheries as systems. Consequently, the human resource needs for an effective fisheries management system, covers a wide range of disciplines. The Gambia like many other African countries has disproportionate number of officers specialising in the biophysical aspect of fisheries management whilst specialists in the social, economic, political and legal perspective of fisheries and aquaculture governance are in dearth. The proportion of women as professional cadre could be improved. It is therefore important that human capacity development is an important policy area in this framework with objectives that must be realised if the ultimate policy goal is to be achieved. 4.2.7.1. Policy Objective Action must be taken to: x Develop human capacity in the fisheries and aquaculture sector to ensure the sustainable resource development and management based on contemporary and emerging trends with the full participation of the range of stakeholders. x Improve evidence based decision making 4.2.7.2. Policy Outcome The following outcomes should be expected; x Manpower and training needs of the fisheries sector assessed x Gender sensitive staff training at middle-level and tertiary levels in all specialties of fisheries and aquaculture sustained x Staff equipped with human, physical, financial and other forms of capacity x Training facilities provided for formal training requirements, development of adequate and up-to- date syllabus and curriculum for programs in fisheries and aquaculture studies x Institutions for human capacity development at all levels in fisheries and aquaculture established fully accredited x Improved evidence/information based decision making and planning via appropriate research and data collection x Management system responsive to real community needs and human capacity of communities developed to meet such needs. x Information sharing between policy makers and consumers timely for development of skills. Fisheries data management system strengthened for sound planning and decision making. 52 x Introduction of fisheries and marine studies in the curricula of Lower Basic, Upper Basic, Secondary and Tertiary institutions promoted. 4.2.7.3. Monitoring Indicators x Manpower and training needs assessment report available x Evidence of gender sensitive staff training in all areas of fisheries and aquaculture management. Monitors levels of competence and proficiency of the stakeholders in the sector. x Evidence that implementing agencies have the human, physical, financial and other forms of capacity x Middle-level manpower and tertiary institutions established, operational and graduating effective workers in fisheries and aquaculture management x Per capita labour productivity: measures the amount of goods and services produced by each member of the labour force or the output per input of labour x Number of accredited practitioners and institutions x Number of real community needs addressed x Existence of diversity of source of policy inputs: monitors levels of information produced, knowledge sharing and utilization. x Change in the effectiveness of policy outcomes: monitors improved evidence-based decision making. Adequacy of data that provides reliable evidence/information for sound planning, evidence based decision making x Existence of scientific and management informed decisions: monitors the ability to use data, information for effective decision-making. x Evidence of the introduction of fisheries and marine studies in the curricula of Lower Basic, Upper Basic, Secondary and Tertiary institutions 53 T able 12. Policy A rea 7: H um an C apital D evelopm ent in Fisheries and A quaculture Policy A rea Policy O bjective Policy O utcom e M onitoring Indicator H um an C apital D evelopm ent in Fisheries and A quaculture D evelop hum an capacity in the fisheries and aquaculture sector to ensure the sustainable resource developm ent and m anagem ent based on contem porary and em erging trends w ith the full participation of the range of stakeholders. M anpow er and training needs of the fisheries sector assessed M anpow er and training needs assessm ent report available G ender sensitive staff training at m iddle-level and tertiary levels in all specialties of fisheries and aquaculture sustained Evidence of gender sensitive staff training in all areas of fisheries and aquaculture m anagem ent. M onitors levels of com petence and proficiency of the stakeholders in the sector. Staff equipped w ith hum an, physical, financial and other form s of capacity Evidence that im plem enting agencies have the hum an, physical, financial and other form s of capacity Training facilities provided for form al training requirem ents, developm ent of adequate and up-to-date syllabus and curriculum for program s in fisheries and aquaculture studies Institutions for hum an capacity developm ent at all levels in fisheries and aquaculture established fully accredited M iddle-level m anpow er and tertiary institutions established, operational and graduating effective w orkers in fisheries and aquaculture m anagem ent Per capita labour productivity: m easures the am ount of goods and services produced by each m em ber of the labour force or the output per input of labour N um ber of accredited practitioners and institutions Im prove evidence based decision m aking Im proved evidence/inform ation based decision m aking and planning via appropriate research and data collection Existence of scientific and m anagem ent inform ed decisions: m onitors the ability to use data, inform ation for effective decision-m aking. M anagem ent system responsive to real com m unity needs and hum an capacity of com m unities developed to m eet such needs. Existence of diversity of source of policy inputs: m onitors levels of inform ation produced, know ledge sharing and utilization. N um ber of real com m unity needs addressed Inform ation sharing betw een policy m akers and consum ers tim ely for developm ent of skills. Fisheries data m anagem ent system strengthened for sound planning and decision m aking. A dequacy of data that provides reliable evidence/inform ation for sound planning, evidence based decision m aking C hange in the effectiveness of policy outcom es: m onitors im proved evidence-based decision m aking 54 4.2.8. Policy Area 8. Food Fish and Nutrition Security “Scarcity is the characteristic of people not having enough; it is not the characteristic of there not being enough”17. Professor Amartya Sen (Winner of the 1998 Nobel Prize for Economics) used the assertion to throw light on how amidst surplus food, people can go hungry due to inaccessibility from institutional barriers. This is when one can live by the river and wash your hands with spittle. The case of The Gambia’s endowment with fisheries resource (in both the fresh water and marine ecosystems) coupled with the aquaculture potential, but yet still, 1 in every 4 child is stunted warrants institutional engineering to address logjams which hider availability, accessibility, utilisation and stability resulting into food fish and nutrition insecurity. In doing so, the policy framework under this policy area analyses food fish insecurity in the Gambia. The object is to discern barriers (across the value chain) to nutritious food fish security and suggest ways of overcoming such barriers. For this purpose, we have adopted FAO’s definition of food and nutrition security as “Food and nutrition security is achieved, if adequate food (quantity, quality, safety, socio-cultural acceptability) is available and accessible for and satisfactorily utilized by all individuals at all times to live a healthy and happy life.”18 4.2.8.1. Policy Objective The policy objective sets out to: x Ensure that food fish is available in adequate quantities that guarantees the sustenance of expanded consumption x Ensure that all people at all times have both physical and economic access to food fish they need (produce, exchange, labour, gift, cash) x Ensure that food fish is utilised in forms, sizes and shapes that are safe and nutritious to meet their dietary (physiological) needs and food preferences for an active and healthy life x Ability to obtained food fish over time is sustained (stability) 4.2.8.2. Policy Outcomes x Food fish assessment including nutritional values of households and socio-cultural preferences done x Sustainable increased in fish production from both capture fisheries and aquaculture x Catches landed in The Gambia. x Bycatch reduction and utilisation programme instituted x Unexploited resources identified and exploited x Post-harvest losses reduced x Capture fisheries and dedicated aquaculture production linked x School feeding programmes emphasised x Gambians encourage to participate in both small-scale fisheries and industrial fisheries of the Atlantic Coast x Fish distributional networks/infrastructure developed and improved x The Gambian economy improved/stabilised x Institutional linkages with NaNa and FSA strengthened and programme on fish utilisation (processing, preparation and cooling methods) developed and implemented to preserve nutrient integrity x Awareness/education programmes on food and nutrition security developed and implemented 17 Sen, A. (1981). Poverty and Famine: an essay on entitlement and deprivation. Oxford, England, Clarendon Press. 18 http://www.fao.org/elearning/course/FA/en/pdf/P-01 RG Concept.pdf 55 x Early warning systems for risk and disaster in place and emergency food stocked in preparedness to alleviate food supply instability x Seasonal food fish instability assessed and addressed x Food safety meets physiological requirements x Improved sanitation 4.2.8.3. Monitoring Indicators x Food fish assessment including nutritional values and socio-cultural preferences done. Enhance psychological and social wellbeing x Sustainable increased in fish production from both capture fisheries and aquaculture. Demand and supply gap narrows and quantity and quality that reaches households meet metabolic needs x Evidence that catch is not landed abroad. Monitored by the proportion of catch landed in The Gambia x Bycatch reduction and utilisation programme developed and implemented to augment available catch. Monitor increased fish availability x Unexploited resources identified and exploited to increase fish availability. Evidence of increased fish availability x Post-harvest losses reduced. Increased availability/utilisation x Evidence of linkage between capture fisheries to dedicated aquaculture production as a way of increasing availability. Evidence of increased fish availability x School feeding programmes involving fish intake emphasised Evidence of increased access by children x Gambians encouraged to participate in both small-scale fisheries and industrial fisheries of the Atlantic Coast. Evidence of positive influence on catch availability and stability x Fish distributional networks/infrastructure developed and improved to increase access x The Gambian economy improved/stabilised to create good paying jobs thereby increasing wages. Monitor economic access to fish x Institutional linkages with NaNa and FSA strengthened and programme on fish utilisation (processing, preparation and cooking methods) developed and implemented to preserve nutrient integrity. Monitor improved nutrient preservation x Awareness/education programmes on food and nutrition security developed and implemented. Proportion of population aware of food fish and nutrition security issues especially intra- household allocation in favour of children x Early warning systems for risk and disaster in place and emergency food stocked in preparedness to alleviate food supply instability. Evidence of food stability during emergencies. x Seasonal food fish instability assessed and addressed x Food safety meets physiological requirements. Evidence of reduction of stunting and wasting x Improved sanitation to reduce occurrence and spread of disease thereby enhancing food utilisation 56 T able 13. Policy A rea 8: Food Fish and N utrition Security Policy A rea Policy O bjective Policy O utcom e M onitoring Indicator Food Fish and N utrition Security Ensure that food fish is available in adequate quantities guarantees the sustenance of expanded consum ption Food fish assessm ent including nutritional values of households and socio-cultural preferences done Food fish assessm ent including nutritional values and socio-cultural preferences done. Enhance psychological and social w ellbeing Sustainable increased in fish production from both capture fisheries and aquaculture Sustainable increased in fish production from both capture fisheries and aquaculture. D em and and supply gap narrow s and quantity and quality that reaches households m eet m etabolic needs C atches landed in The G am bia. Evidence that catch is not landed abroad. M onitored by the proportion of catch landed in The G am bia B ycatch reduction and utilisation program m e instituted Bycatch reduction and utilisation program m e developed and im plem ented to augm ent available catch. M onitor increased fish availability U nexploited resources identified and exploited U nexploited resources identified and exploited to increase fish availability. Evidence of increased fish availability Post-harvest losses reduced Post-harvest losses reduced. Increased availability/utilisation C apture fisheries and dedicated aquaculture production linked Evidence of linkage betw een capture fisheries to dedicated aquaculture production as a w ay of increasing availability. Evidence of increased fish availability Ensure that all people at all tim es have both physical and econom ic access to food fish they need (m eans = produce, exchange, labour, gift, cash) School feeding program m es em phasised School feeding program m es involving fish intake em phasised Evidence of increased access by children Fish distributional netw orks/infrastructure developed and im proved Fish distributional netw orks/infrastructure developed and im proved to increase access The G am bian econom y im proved/stabilised The G am bian econom y im proved/stabilised to create good paying jobs thereby increasing w ages. M onitor econom ic access to fish Ensure that food fish is utilised in form s, sizes and shapes that are safe and nutritious to m eet their dietary (physiological) needs and food preferences for an active and healthy life Institutional linkages w ith N aN a and FSA strengthened and program m e on fish utilisation (processing, preparation and cooling m ethods) developed and im plem ented to preserve nutrient integrity Institutional linkages w ith N aN a and FSA strengthened and program m e on fish utilisation (processing, preparation and cooking m ethods) developed and im plem ented to preserve nutrient integrity. M onitor im proved nutrient preservation A w areness/education program m es on food and nutrition security developed and im plem ented Aw areness/education program m es on food and nutrition security developed and im plem ented. Proportion of population aw are of food fish and nutrition security issues especially intra-household allocation in favour of children 57 Food safety m eets physiological requirem ents Food safety m eets physiological requirem ents. Evidence of reduction of stunting and w asting Im proved sanitation Im proved sanitation to reduce occurrence and spread of disease thereby enhancing food utilisation A bility to obtained food fish over tim e is sustained (stability) Early w arning system s for risk and disaster in place and em ergency food stocked in preparedness to alleviate food supply instability Early w arning system s for risk and disaster in place and em ergency food stocked in preparedness to alleviate food supply instability. Evidence of food stability during em ergencies. Seasonal food fish instability assessed and addressed Seasonal food fish instability assessed and addressed G am bians encourage to participate in both sm all-scale fisheries and industrial fisheries of the A tlantic C oast G am bians encouraged to participate in both sm all- scale fisheries and industrial fisheries of the Atlantic C oast. Evidence of positive influence on catch availability and stability 58 4.2.9. Policy Area 9. Institutional Reform and Inter-Sectoral Linkages The evolution of stewardship approaches (development-management-comanagement-right based approach-ecosystem approach-governance ---?) suggests institutional reform to accommodate the changes. As mentioned earlier, traditionally, fisheries focused on the “fish” and how to catch as much as possible. But contemporary fisheries and fisheries governance involves the complex and diverse social, economic, political and legal factors that drive the behaviours of fishermen as individuals and fisheries as systems which cut across many sectors. Inter and intra sectoral linkages are therefore crucial to realise any policy goal in fisheries and aquaculture. In fact the lack of such linkages is a primary causative factor for policy failures. With respect to institutional reform, creation of decentralised structures for the effective participation and empowerment of stakeholders is key. Second, directorates responsible for the various aspects of contemporary fisheries resource stewardship should be established and manned by competent personnel. On the institutional linkages front, the plain fact is that stewardship of fisheries resources is directly linked to several institutions in other sectors with respect to all the issues across to value chain from acquisition of access and input supplies to presenting fish on the table or the market. Such linkages are interdependent, inherent and essential for the achievement of the overall policy goal. 4.2.9.1. Policy Objectives The objective is to: x Reform, develop capacity and equip the Department of Fisheries into an effective and efficient entity capable of performing its mandate of the management of contemporary fisheries and aquaculture of The Gambia x Draw on all the available human, institutional and material resources of The Gambia in the quest of achieving the goal of the Fisheries and Aquaculture Policy of The Gambia 4.2.9.2. Policy Outcomes x Roles and responsibilities in the fisheries and aquaculture management assessed and shared amongst stakeholders complete with developed capacities, equipment and decentralised institutions x Directorates established to management the various aspects of fisheries and aquaculture management x Study conducted to identify the range of MDAs in the Gambia relevant for the achievement of the goal of the fisheries and aquaculture policy including documentation of potential role of such institutions. x Engage relevant MDAs with a memorandum of understanding in order to effectively perform identified roles. Policy coherence ensured with all pertinent MDAs 4.2.9.3. Monitoring Indicators x Roles and responsibilities shared amongst stakeholders with evidence of being empowered (in human, institutional and material terms) to perform tasks x Various Directorates established and operational with competent personal manning diverse aspects of fisheries stewardship. Evidence of capturing diverse areas of fisheries management x Information available on the relevant MDAs to fisheries management and their potential roles identified. x Relevant MDAs to the goal of the fisheries and aquaculture policy of The Gambia performing their roles in a joint arrangement with the Fisheries Department. Number of joint projects implement ed. Policy coherent with relevant MDAs 59 T able 14. Policy A rea 9. Institutional R eform and Inter-Sectoral L inkages Policy A rea Policy O bjective Policy O utcom e M onitoring Indicator Institutional R eform and Inter-Sectoral Linkages R eform , develop capacity and equip the D epartm ent of Fisheries into an effective and efficient entity capable of perform ing its m andate of the m anagem ent of contem porary fisheries and aquaculture of The G am bia R oles and responsibilities in the fisheries and aquaculture m anagem ent assessed and shared am ongst stakeholders com plete w ith developed capacities, equipm ent and decentralised institutions D irectorates established to m anagem ent the various aspects of fisheries and aquaculture m anagem ent Roles and responsibilities shared am ongst stakeholders w ith evidence of being em pow ered (in hum an, institutional and m aterial term s) to perform tasks Various D irectorates established and operational w ith com petent personal m anning diverse aspects of fisheries stew ardship. Evidence of capturing diverse areas of fisheries m anagem ent D raw on all the available hum an, institutional and m aterial resources of The G am bia in the quest of achieving the goal of the Fisheries and A quaculture Policy of The G am bia Study conducted to identify the range of M D A s in the G am bia relevant for the achievem ent of the goal of the fisheries and aquaculture policy including docum entation of potential role of such institutions. Engage relevant M D A s w ith a m em orandum of understanding in order to effectively perform identified roles. Policy coherence ensured w ith all pertinent M D A s Inform ation available on the relevant M D As to fisheries m anagem ent and their potential roles identified. Relevant M D As to the goal of the fisheries and aquaculture policy of The G am bia perform ing their roles in a joint arrangem ent w ith the Fisheries D epartm ent. N um ber of joint projects im plem ented. Policy coherent w ith relevant M D A s 60 4.2.10. Policy Area 10. Sport Fishing The Gambia has a decent comparative advantage in tourism as the country had positioned itself as a tourist destination for many years which is now bearing fruits. The tourism sector contributes about 13% to GDP, and about 20% of all private sector formal jobs. One of the major tourist attraction is sport fishing which if properly managed will improve contribution to national wealth. Although Sport Fishing is generally regarded as the domain of the Department of State for Tourism, its activities should be regulated to ensure that legal and environmentally friendly fishing gears and methods are used; that recreational fishing is not done in sensitive areas, and that business establishments engaged in sport fishing are properly monitored. This is where institutional linkage between the Department of Fisheries and Tourism is vital to develop sport fishing framework. 4.2.10.1. Policy Objective The policy objectives are to: x Obtain optimum revenue from sustainable and healthy sport fishing stocks conducted within a monitored, controlled and surveillanced spatial and temporal framework using legal fishing gears. 4.2.10.2. Policy Outcomes x Spot fishing stocks are healthy and at sustainable levels x Technical regulation for spot fishing developed (including spatial and temporal delineations) and implemented x Infrastructure development for sport fishing x Economic rent derived from access 4.2.10.3. Monitoring Indicators x Spot fishing stock managed sustainably in a healthy environment as evidenced by stock size and composition and pollution studies x Sporting is done following a technical regulation manual x The necessary Infrastructure and facilities for sport fishing is developed/provided to attract more tourists on one hand and more sport fishers on the other. Number of sport fishers per year x Economic rent derived from access. Revenue versus cost over time 61 T able 15. Policy A rea 10. Sport Fishing Policy A rea Policy O bjective Policy O utcom e M onitoring Indicator Sport Fishing O btain optim um revenue from sustainable and healthy sport fishing stocks conducted w ithin a m onitored, controlled and surveillanced spatial and tem poral fram ew ork using legal fishing gears Spot fishing stocks are healthy and at sustainable levels Technical regulation for spot fishing developed (including spatial and tem poral delineations) and im plem ented Infrastructure developm ent for sport fishing Econom ic rent derived from access Spot fishing stock m anaged sustainably in a healthy environm ent as evidenced by stock size and com position and pollution studies Sporting is done follow ing a technical regulation m anual The necessary Infrastructure and facilities for sport fishing is developed/provided to attract m ore tourists on one hand and m ore sport fishers on the other. N um ber of sport fishers per year Econom ic rent derived from access. R evenue versus cost over tim e 62 4.2.11. Policy Area 11. Cross-Cutting Issues in the Fisheries and Aquaculture of The Gambia A number of cross-cutting issues should be addressed in order to achieve policy goal. These include, but not limited to Fisheries Finance/Insurance/Private Sector Investment, Gender and Youth, Disaster & Risk Management, Climate Change and Political economy issues. Given the range of policy prescription in this policy, private sector investment will be required to develop the needed capacities. Thus, policy should provide financing mechanisms for the development of the commercial fisheries and aquaculture sector so as to foster the growth of sustainable, profitable, diverse and adaptable enterprises. Insurance schemes must be considered in fisheries business given the level of potential risk in the sector including weather conditions. Fisheries is one of the most genderised sectors in The Gambia like in many developing African countries. Men and women do specific jobs - whilst men focus on providing harvest services, women dominate the post-harvest segment of the value chain. Empowerment of women could be achieved through fisheries. Unemployment is rife amongst Gambian youths which warrant the need to improve working condition and access to resources for youths in fisheries. Fisheries is particularly vulnerable to climate change as living aquatic resources can only survive within strict range of environmental parameters of temperature, salinity, density etc. Again, as fisheries is the mainstay for animal protein security, the sector is very sensitive to climate change disruptions. Hence, policy should aim to develop a strategy and action plan for integrating disaster risk management (DRM) and climate change adaptation (CCA) relating to fisheries and aquaculture. One should understand political forces that lead to certain challenges in fisheries and align solutions with political forces for successful policy implementation. 4.2.11.1. Policy Objective Action must be taken to; x Align solutions to stewardship challenges with local political forces x Strengthen resilience and reduce vulnerabilities to disaster risks and climate change in the fisheries and aquaculture of The Gambia x Improve working conditions and access to resources in order to unleash the potential of women groups and youths make their rightful contribution in resource management and wealth creation x Improve enterprise performance within the fisheries and aquaculture sector via improved private sector investment and governance 4.2.11.2. Police Area Outcome The following outcomes should be expected; Financial support and private sector governance x Financial support program for the development of the commercial fisheries and aquaculture sector provided in compliance with World Bank ease of doing business index, Global competitiveness report of WEF, World Bank Fisheries Performance indicators x Improved private sector governance with efficient structure that enables effective and well- documented quality control measures in fisheries and aquaculture x Published periodic guidelines on required reforms for effective development, environmental sustainability, economic profitability and social responsibility. x Insurance schemes developed in fisheries Improved working conditions and access for women and youths x Effective and widespread participation of stakeholders including women and youth ensured enhanced 63 x Gender mainstreaming x Non-discriminatory and gender/youth sensitive interventions addresses constraints to entry and access to land and water and other productive resources for fisheries and aquaculture investments. x Security of investments and market certainty ensured for long-term investments in tenure that is tradable with strong property right. x International Labour Organization labor laws form the standard of practice in fisheries and aquaculture x Safer and more conducive working environment for women, youths and the vulnerable are provided. x User friendly improved processing technologies that are gender sensitive Climate Change and Disaster Risks x Built adaptive capacity and resilience to CC and DR. Human resource and institutional capacity developed with fishing communities made aware about climate adaptation and disaster risk management including infectious disease outbreak such as Ebola. x Enhanced knowledge base, information sharing and skills on climate change x Developed suitable participatory process for the assessment of disaster risk and climate change vulnerability x Developed strategy and action plan for integrating disaster risk management (DRM) and climate change adaptation (CCA) relating to fisheries and aquaculture x Stakeholders especially vulnerable groups are protected to prevent and respond to the effects of climate change x Tenure aspect of fisheries and aquaculture is addressed in mitigating the effects of natural disaster Political Economy x Possible solutions to stewardship challenges agrees with prevailing national development plans x Policy coherence with other MDAs ensured; x Potential conflicts identified and resolved x Sustained engagement for the adoption of international best practices 4.2.11.3. Monitoring Indicators Financial support and private sector governance x Available financial support program for the development of the commercial fisheries and aquaculture sector in compliance with World Bank ease of doing business index, Global competitiveness report of WEF, World Bank Fisheries Performance indicators, x Proof of improved private sector governance with efficient structure that enables effective quality control measures in fisheries and aquaculture x Proof of published periodic guidelines on required reforms for effective development, environmental sustainability, economic profitability and social responsibility x Evidence of insurance schemes in fisheries. Improved working conditions and access for women and youths x Effective and widespread participation of stakeholders observed x Evidence of non-discriminatory and gender/youth sensitive interventions from improved access to land and water and other productive resources for fisheries and aquaculture investments. x Evidence of investments security and market certainty for long-term investments in tenure that is tradable with strong property right. x Evidence of International Labour Organization as standard of practice in fisheries and aquaculture labour laws 64 x Observable safer and conducive working environment for women, youths and the vulnerable x Available user friendly improved processing technologies that are gender sensitive Climate change and Disaster Risks x Initiatives and programmes to strengthen community resilience are in place (Early warning systems, Access to public and private insurance, harvest strategy, insurance scheme, capacity development and community empowerment, funding opportunities etc.) to build adaptive capacity and resilience at the local level through relevant initiatives and programmes. x Evidence of diversification of fisheries products to build adaptive capacity and resilience at the local level through value chains and mechanism suitable to their (community) conditions. x Established knowledge management and information sharing platform linked to AU disaster risk management strategy (DRR) to build adaptive capacity and resilience at the local level through linking platforms for knowledge management. x Evidence of availability of financial resources for CCA and DRM: resources available for development and implementation of DRM and CC policies for the improvement of coherence and coordination at national and regional levels. x Evidence of fisheries management plans that incorporate CCA and DRM issues: plans consistent with policy framework x Evidence of vulnerable groups protected to prevent and respond to the effects of climate change x Evidence of tenure aspect of fisheries and aquaculture addressed in mitigating the effects of natural disaster Political Economy x Evidence of agreement between possible solutions to stewardship challenges and national development plans; x Evidence of policy coherence with other MDAs; x Evidence of identified and resolved conflict; x Evidence of adoption of international best practice as a result of sustained engagement with political authorities 65 T able 16. Policy A rea 11. C ross-C utting Issues in the Fisheries of T he G am bia Policy A rea Policy O bjective Policy O utcom e M onitoring Indicator C ross-C utting Issues in the Fisheries of The G am bia Finance and R esponsible Investm ent Im prove enterprise perform ance w ithin the fisheries and aquaculture sector via im proved private sector investm ent and governance Provided financial support program for the developm ent of the com m ercial fisheries and aquaculture; Im proved private sector governance w ith efficient structure that enables effective and w ell- docum ented quality control m easures in fisheries and aquaculture; Published periodic guidelines on required reform s. Insurance schem es in fisheries Evidence of financial support program for the developm ent of the com m ercial fisheries and aquaculture sector; Evidence of im proved private sector governance w ith efficient structure; Proof of published periodic guidelines on required reform s; Evidence of insurance schem es in fisheries G ender and Y outh Im prove w orking conditions and access to resources for w om en and youths Effective and w idespread participation of stakeholders particularly w om en and youth; N on-discrim inatory and gender/youth sensitive interventions in place for access to land and w ater and other productive resources for fisheries and aquaculture investm ents; Security of investm ents and m arket certainty ensured for long-term investm ents in tenure that is tradable w ith strong property right; International Labour O rganization labor law s form the standard of practice in fisheries and aquaculture; Safer and m ore conducive w orking environm ent provided for w om en, youths and the vulnerable. U ser friendly im proved processing technologies that are gender sensitive Evidence of effective and w idespread participation of stakeholders including w om en and youth; Evidence of non- discrim inatory and gender/youth sensitive interventions for access to land and w ater and other productive resources for fisheries and aquaculture investm ents; Evidence of investm ents security and m arket certainty for long-term investm ents in tenure that is tradable w ith strong property right; Evidence of International Labour O rganization labor law s as standard of practice in fisheries and aquaculture; Evidence of safer and m ore conducive w orking environm ent for w om en, youths and the vulnerable. A vailable user friendly im proved processing technologies that are gender sensitive C lim ate change and D isaster risks Strengthen resilience and reduce vulnerabilities to disaster risks and clim ate change in the fisheries and aquaculture of The G am bia B uilt adaptive capacity and resilience to C C and D R including infectious diseases such as Ebola; Enhanced know ledge base, inform ation sharing and skills on clim ate change; D eveloped suitable participatory process for the assessm ent; D eveloped strategy and action plan for integrating disaster risk m anagem ent and clim ate change adaptation; Stakeholders especially vulnerable groups are protected to prevent and respond to the effects of clim ate change; Tenure aspect of fisheries and aquaculture is addressed in m itigating the effects of natural disaster Initiatives and program m es to strengthen com m unity resilience are in place (Early w arning system s, A ccess to public and private insurance, harvest strategy, insurance schem e, capacity developm ent and com m unity em pow erm ent, funding opportunities etc.): Evidence of diversification of fisheries products w ith built adaptive capacity and resilience at the local level; Established know ledge m anagem ent and inform ation sharing platform linked to A U disaster risk m anagem ent strategy (D R R ): Evidence of availability of financial resources for C C A and D R M : Evidence of fisheries m anagem ent plans that incorporate C C A and D R M issues: plans consistent w ith policy fram ew ork Evidence of vulnerable groups protected to prevent and respond to the effects of clim ate change; Evidence of tenure aspect of fisheries and aquaculture addressed in m itigating the effects of natural disaster Political E conom y A lign solutions to stew ardship challenges w ith local political forces Possible solutions to stew ardship challenges agrees w ith prevailing national developm ent plans; Policy coherence w ith other M D A s ensured; Potential conflict areas identified and resolved; Sustained engagem ent for the adoption of international best practice Evidence of agreem ent betw een possible solutions to stew ardship challenges and national developm ent plans; Evidence of policy coherence w ith other M D A s; Evidence of identified and resolved conflict; Evidence of adoption of international best practice 66 5.0. Principles Principles could be categorised into Substantial principles/values and Procedural Principles/values. 5.1. Substantial Principles and Values Existing valuable framework useful for governance of fisheries which informed this policy design includes. The Gambia National Development Plan Guidelines for the Implementation of the Policy Framework and Reform Strategy for Fisheries and Aquaculture in Africa (PFRS): The PFRS seeks to catalyze the transformation of Africa’s fisheries and aquaculture for food, livelihoods and wealth by making clear necessary guiding principles available for good governance of Africa’s fisheries and for increased coherence and coordination of the sector by assisting AU Member States develop realistic fisheries and aquaculture policies. AU, Addis Ababa, 2015. UNCLOS 1982. The United Nations Convention on the Law of the Sea (UNCLOS) is the international agreement that resulted from the third United Nations Conference on the Law of the Sea (UNCLOS III), which took place between 1973 and 1982. The Law of the Sea Convention defines the rights and responsibilities of nations with respect to their use of the world's oceans, establishing guidelines for businesses, the environment, and the management of marine natural resources. UNFSA 1995. The United Nations Agreement for the Implementation of the Provisions of the United Nations Convention on the Law of the Sea of 10 December 1982 relating to the Conservation and Management of Straddling Fish Stocks and Highly Migratory Fish Stocks sets out principles for the conservation and management of those fish stocks and establishes that such management must be based on the precautionary approach and the best available scientific information. IPOA-IUU 2001: International Plan of Action to Prevent, Deter and Eliminate Illegal, Unreported and Unregulated Fishing is a set of tools for use in dealing with IUU fishing in its various manifestations with guidance on how to use the tools effectively. Code of Conduct for Responsible Fisheries (CCFR): (FAO, 1995). Very authoritative, user friendly and comprehensive framework for fisheries management. FAO, Rome 1995 Convention on Biological Diversity (CBD): At the 1992 Earth summit in Rio de Janeiro United Nations Conference on Environment and Development (UNCED), world leaders agreed on a comprehensive strategy for “sustainable development” meaning meeting our needs while ensuring that we leave a healthy and viable life for the future generations. CBD is one of the key agreements at the earth summit with 3 specific goals. 1. Conservation of biological diversity 2. The sustainable use of its components 3. Fair and equitable sharing of benefits from the use of genetic resources. http://www.cbd.int/doc/publications/cbd- sustain-en.pdf United Nations Framework Convention on Climate Change is an international environmental treaty adopted on 9th May 1992 (entered into force on 21st March 1994. The objective is to stabilise greenhouse concentrations in the atmosphere at a level that would prevent dangerous anthropogenic interference with the climate system. 67 United Nations Sustainable Development Goals (SDGs): Sets 17 global and targets unveiled in September 2015 for achievement by 2030. The Goals and targets will stimulate action over the next fifteen years in areas of critical importance for humanity and the planet. Goal 14 is “Conserve and sustainably use of the oceans, seas and marine resources for sustainable development” – which is directly germane to fisheries. Sustainable Livelihood Approach (SLA): Set of principles and an analytical framework for diagnosis and action. It is people centred; holistic; dynamic and flexible; build on strength; promote macro-micro linkages; encourage partnering; aim at the long term sustainability. www.sfla.org/ WHO/FAO standards for safe and healthy fisheries products: Through the implementation of the Codex Alimentarius. The Codex Alimentarius Commission was created in 1963 by FAO and WHO to develop food standards, guidelines and related texts such as codes of practice under the Joint FAO/WHO Food Standards Programme. The main purposes of this Programme are protecting health of the consumers and ensuring fair trade practices in the food trade, and promoting coordination of all food standards work. http://www.codexalimentarius.net/web/index en.jsp International Guidelines for the Management of Deep-sea Fisheries in the High Seas (FAO 2009). “The guidelines are designed to provide guidance on management factors ranging from an appropriate regulatory framework to the components of a good data collection programme, and include the identification of key management considerations and measures necessary to ensure the conservation of target and non-target species, as well as affected habitats. These guidelines are voluntary and constitute an instrument of reference to help States and RFMO/As in formulating and implementing appropriate measures for the management of deep-sea fisheries in the high seas”. 5.2. Procedural Principles and Values During policy implementation, good governance procedures observe the following principles: Human dignity: The inherent dignity and the equal and inalienable human rights of the all individuals are recognised and respected under the rule of law Transparency: Everybody see how decisions are made and who makes them Accountability: Decision makers (both local and governmental) are procedurally and periodically answerable to those they represent. Comprehensiveness: All interest groups are consulted from the outset in defining the nature of problems or opportunities prior to any decision about management being taken. Inclusiveness: All those who have legitimate interest (especially fisheries livelihood dependent groups) participate fully in the decision making process Representativeness: Decision-makers are representative of all interest groups Information sharing: All interest groups understand the objective of participatory process and have adequate and timely access to relevant information. Empowerment: All interest groups (women, youths and men) enjoy equal rights and are capable of actively participating in decision making in a non-dominated and non-discriminatory environment Sustainability: Application of the precautionary approach and risk management will guard against undesirable bio-ecological and socio-economic outcomes. 68 Scalability: Activities, wherever possible, must be designed to be suitable for use at different scales, for example at local and national scales and regionally. Scaling must be attained by replication (in different places), and by modification and adaptation of initiatives for different contexts. Self-development: Policy frameworks are of little value in the absence of operational plans, supporting political will and financial resources. Governments must provide the enabling environment for stakeholders (of the sector) to contribute to the sustainable use and economic viability of the fisheries and aquaculture sector.