Tuna Fisheries Strategic Plan 2017-2021

Tuna Fisheries Strategic Plan 2017–2021 Ministry of Natural Resources, Environment & Tourism of the Republic of Palau REPUBLIC OF PALAU2009 O FFICIAL SEAL MIN IST RY OF NA TURAL RESOURCES, ENVIRONMENT AND TOURISM ii Tuna Fisheries Strategic Plan 2017–2021 Foreword This document has been prepared to identify the vision and goals for Palau’s tuna fisheries and lay out detailed actions needed to prepare the Ministry to fully implement the Palau National Marine Sanctuary by 2020 This strategic plan for Palau’s tuna fisheries identifies strategies to consult industry and all stake- holders involved, develop policy, improving institutional capacity, supporting the creation of lo- cally-based tuna operations and development of a national monitoring control and surveillance plan. I believe that the effective implementation of these strategies and associated actions will set the course for Palau to begin moving forward towards its vision of a fishery that is ecologically sustainable providing seafood for local and tourist markets, opportunities for high end recreational fishing and positive economic returns through local employment, local processing and a profitable domestic fleet. Palau has had a long history of conserving its resources, now moving toward integration of con- servation and sustainable use for the benefit of the people through its traditional prohibition ethic and most recently, the Protected Areas Network (PAN). The creation of the Sanctuary and the do- mestication of the tuna industry is another step for Palau to protect the environment and ensure that its residence and visitors continue to enjoy the benefits that the ocean can provide. F. Umiich Sengebau Minister Ministry of Natural Resources, Environment, and Tourism iii Tuna Fisheries Strategic Plan 2017–2021 Contents Acknowledgements iv Vision 1 Objective 1 Outcomes and Performance Indicators 1 Outcome 1 – Bycatch and Mortality 1 Outcome 2 – National food security supported through sustainable and regular tuna supply available for all Palauans and the tourist industry 1 Outcome 3 – Positive social and economic returns for the people of Palau 1 Strategy 2 Actions and Implementation 2 1 – Tuna management framework compatible with Palau’s conservation and sustainable fishery objectives in the marine sanctuary planning process, fishing laws and existing policy position 2 2 – Develop institutional capacity within the Ministry of Natural Resources, Environment & Tourism with a clear legislative framework 3 3 – Develop a tuna fishery management plan to meet fishery objectives (defined in regional harvest strategy), support locally based fleets, enhance recreational fishing opportunities and minimise bycatch of non-commercial species 4 4 – Support the development of locally based fishing operations with local participation fishing, port unloading, processing and sale of fish. 5 5 - Develop a national Monitoring Control and Surveillance strategy that includes the Palau National Marine Sanctuary and the fisheries sector 6 Capacity and Resources 6 Appendix 1 7 Implementation Workplan 7 iv Tuna Fisheries Strategic Plan 2017–2021 Acknowledgements The Forum Fisheries Agency, the Pacific Community and The Nature Conservancy are acknowledged for their extensive technical support during the drafting of this plan. Further acknowledgements are due to Leonard Rodwell, David Power, Kathleen Sisior and Yvonne Ueda for their great work and the support they provided to get this document finalized. Photo: Jonne Roriz 1 Tuna Fisheries Strategic Plan 2017–2021 Vision Ecologically sustainable fishery providing seafood for local and tourist markets, opportunities for high end recreational fishing and positive economic returns through local employment, local pro- cessing and a profitable domestic fleet. Objective The objective of this plan is to develop institutional capacity and establish a fishery management framework for Palau’s fisheries that ensures: Commercially important fish species in Palau’s waters are utilised in a way that conserves fish stocks at ecologically sustainable levels into perpetuity to provide food, viable commercial and recreational fisheries and sustainable economic growth and opportunities for all Palauans. Outcomes and Performance Indicators Outcome 1 – Bycatch and Mortality • Consolidated legal framework, national policy statement and integrated management plan on fisheries management that defines management targets and limits for commercially im- portant species and bycatch • Bycatch of sharks, rays, turtles and cetaceans is significantly reduced Outcome 2 – National food security supported through sustainable and regular tuna supply available for all Palauans and the tourist industry • Total tuna catch landed into Palau • Volume of locally caught tuna available for sale in the domestic market each week • Increased per capita tuna consumption • Reduce pressure on coastal reef Outcome 3 – Positive social and economic returns for the people of Palau • Number of Palauans working in each sector of the fishing industry • Proportion of Palauan ownership in fishing ventures • Resource rent/access fees received by Government of Palau • Net economic return (measures profitability across all boats) Each of these performance indicators is measurable and will need to be collected routinely over the life of this strategy. Current baseline data will need to be established along with data collection processes. 2 Tuna Fisheries Strategic Plan 2017–2021 Strategy To pursue the objective, the strategic plan seeks to: 1. Ensure that the tuna management framework is implemented that is compatible with Pa- lau’s conservation and sustainable fishery objectives in the marine sanctuary planning pro- cess and national fisheries policy. 2. Strengthen institutional capacity within Palau fisheries management with a clear legislative framework to effectively pursue fishery management objectives and support decision making. 3. Develop a Palau Fisheries management plan to meet fishery objectives (defined in regional harvest strategy), support locally based fleets, enhance recreational fishing opportunities and minimise bycatch of non-commercial species. 4. Support the development of locally based tuna and tuna like species fishing operations with local participation in fishing, port unloading, processing and sale of fish established. 5. Develop a national monitoring control and surveillance strategy that includes the Palau National Marine Sanctuary and the fisheries sector. Actions and Implementation 1 – Tuna management framework compatible with Palau’s conservation and sustainable fishery objectives in the marine sanctuary planning process, fishing laws and existing policy position Currently Palau has pelagic longline vessels operating across the Exclusive Economic Zone (EEZ), however, pursuant to the newly enacted Palau National Marine Sanctuary (PNMS) Act of 2015, full implementation of the Domestic Fishing Zone will limit commercial fishing of tuna to 20 % of the EEZ by 2020. Action 1: Define and implement interim VDS management for the longline and purse seine sector 2017-2020. Management of the longline sector is adopting the vessel day scheme approach that limits the number of days that can be fished to a regionally determined level. Currently exports are permitted but this could be removed post 2020 in favour of a scaled down longline sec- tor that supplies the domestic market only. This plan sets out the development of a fisheries management plan as a key deliverable that would apply from 2020. However, to achieve this existing fisheries management, commitments need to be supported through to 2020. Purse seine vessels are not currently fishing in Palau and Palau sells its allocation of days under the Purse Seine VDS to other countries. There is a need for clarity around the purse seine policy and a key action under this plan is the proposal to develop a national fisheries policy over the next two years. This will be discussed more under action 3 and will help guide the development of a fishery management plan for post 2020. Action 2: Review Palau’s fisheries legislative framework Palau’s legislative framework and implementing regulation for national fisheries management needs to be collectively reviewed and re-assessed to identify the most efficient and effective legislative structure. This could involve streamlining existing laws under one fisheries Act. 3 Tuna Fisheries Strategic Plan 2017–2021 2 – Develop institutional capacity within the Ministry of Natural Resources, Environment & Tourism with a clear legislative framework The Ministry of Natural Resources, Environment and Tourism has been through many changes over the years as policy and focus changes over different Administrations. There is immediate need for an institutional mechanism to strengthen implementation of the current and additional regulatory and management functions of the Ministry in regards to fisheries and marine resources. Palau’s fisheries laws exist in various laws, regulations and executive orders which could be simplified through the implementation of one coherent fisheries Act. Palau’s legislative framework and implementing regulation for national fisheries management needs to be col- lectively reviewed, re-assessed and refined into one comprehensive law defining clear policy, development, regulation, and management goals. To enable development of institutional capacity within the fisheries management and support a clear legislative framework, there are four key actions: Action 1 : Organizational Restructuring & Operational Management Review and revision of EO381 is urgently required to further clarify the role of the Bu- reau and its Divisions in line with the current fisheries framework and the broader Pa- lau fisheries, international and regional standard for national fisheries authorities. Develop operations manuals for all the established processes and services to the public for better governance, greater transparency to decision making and for information sharing. Develop reporting process and template where necessary to meet the national, regional and interna- tional reporting requirements. Action 2: Assess current staffing and capacity needs, recruit and train Immediate need to hire Division Chief to manage the daily operations and management of the Division. Conduct a review of the organisational structure of the Bureau and immedi- ately fill the current vacant positions required to support the management of the Division and the interim implementation of the Palau National Marine Sanctuary. Develop a train- ing plan for 2020 and beyond to ensure continued program enhancing staff knowledge and skills and ensure staff are fully equipped to carry out their duties and functions. Action 3: Define current funding needs and seek funding for fisheries management Identify ongoing funding for fisheries management. Secure funding for fisheries management cost most especially core positions required and office consumables and office equipment up- grade. Assessment of existing commercial offshore fishing tax, licensing, penalties and fine systems and consider potential increase that can be allocated to fisheries management. 4 Tuna Fisheries Strategic Plan 2017–2021 3 – Develop a tuna fishery management plan to meet fishery objectives (defined in regional harvest strategy), support locally based fleets, enhance recreational fishing opportunities and minimise bycatch of non-commercial species With the existing commitment for the implementation of the Palau National Marine Sanctu- ary from 2020, current management measures will continue under interim arrangements that are addressed under strategy 1 (above). The actions outlined here are intended to support the development of a fisheries management plan to be implemented from 2020. This is aligned with the current planned implementation of the marine sanctuary. Current- ly tuna longline is allowed throughout Palau and is managed through limited entry. From 2020 it is envisaged that all commercial fishing within Palau’s EEZ and outside of 12 nautical miles will be constrained to an area equivalent to 20% of Palau’s EEZ. This is intended as a conservation and management measure to protect the marine resources with Palau’s pelagic marine environment. To enable the development of a fisheries management plan, post 2020, there are three key actions. Action 1: Conduct a biological and economic assessment of tuna fishery options for Palau post 2020. This would consider the available area, harvestable biomass, market opportunities, employ- ment and costs to determine what models would be viable and meet the fisheries and con- servation objectives for Palau. This does not need to be limited to commercial only but could include recreational charter fishing and other sustainable uses of the tuna resource. Action 2: Develop a national fisheries and marine resource policy Based on the outcomes of the review, a national fisheries and marine resource policy needs to be developed that sets out binding objectives, measures and reference points to support the conservation and management vision. This policy should ideally encompass the full ma- rine sector and seek to harmonise management of the marine environment and resources. Action 3: Develop and implement a Palau Fisheries and Marine Resources Management Plan for post 2020. Guided by the national marine sector policy, a Palau Fisheries Management Plan will be developed. This would ideally cover both coastal and offshore fisheries. The management plan would include fishery management objectives, procedures for granting fishing rights and licences, management measures for restricting catch and effort to target levels within parameters agreed in the national fisheries and marine resource policy. 5 Tuna Fisheries Strategic Plan 2017–2021 4 – Support the development of locally based fishing operations with local participation fishing, port unloading, processing and sale of fish. Actions 1: Develop a national policy on fisheries development as part of an overall national fisheries policy to address: • Development and advancement of options for domesticating Palau’s tuna fishery – costal fishers targeting nearshore anchored FADs, testing innovative gears and vessels, joint venture with traditional longline vessels, value added tuna products export, small-scale canning & smoking options, dockside infrastructure and operations • Development options for the domestic fishery, including the type of vessels to be utilised licensing policy, licensing fees and marketing options. • Infrastructure support requirements particularly the need for a wharf with a space for fish storage. • Financial support, including financing to enable Palauans to participate in the commercial fishing industry. • Taxation including what taxation incentives might apply to assist Palauans develop the fishery. • Ownership and equity in fishing operations including deciding what role, if any, foreign investors might have in developing the commercial fishery • Recreational fishing including the extent to which this fishery is regulated and licensed. • FAD Assessment to determine potential expansion or creation of FAD network to sup- port alternative livelihood for costal fishers Action 2: Consult with industry on options on what is viable and how to fish the area open to commercial fishery • Prepare a development plan based on the outcome of the market survey, the SPC study on the productivity and expected catches from the 20% area and an economic analysis of the viability of the fishery. • Assess the impact on the viability for the domestic industry if export of high grade fish is permitted. As it stands exports of fish from the commercial fishery will be prohibited post 2020. However, it is uncertain whether the domestic market can absorb all the catch from the commercial fishery. In addition, it is uncertain whether the domestic price for fish would match the price that could be obtained on export markets. • Assess the impact on the viability of the industry if Palau domestic vessels are permitted to fish in neighbouring EEZs and/or high seas with only 20% of the EEZ open to com- mercial fishing 6 Tuna Fisheries Strategic Plan 2017–2021 5 - Develop a national Monitoring Control and Surveillance strategy that includes the Palau National Marine Sanctuary and the fisheries sector The current MCS strategy for the Palau National Marine Sanctuary comprehensively sets out how the marine sanctuary can be monitored but does not include the tools on board and avail- able within the fisheries sector. Action 1: Develop fishery monitoring, compliance and enforcement program for the interim period and post 2020 and ensure it is aligned with existing MCS objectives for the marine sanctuary Given the high costs involved in monitoring such large areas of water, there is an opportu- nity for greater efficiency if a national monitoring and enforcement program is developed to incorporate both marine parks, fisheries and all marine sector activity. Action 2: Improve the efficiency, reliability of monitoring systems and data collection Both electronic monitoring (EM) and electronic reporting (ER) are emerging tools that can improve the efficiency and reliability of monitoring fishing vessels. They are actively being trialled with good progress. The optimal approach for the longer term is to ensure that all longline vessels have ER and EM systems installed. • All longline vessels to have full e-reporting from late 2018 • All longline vessels to have mandatory e-monitoring with the commencement of the proposed tuna management plan in 2020. • Biological data needs will be met through the use of human observers and port sam- plers. Capacity and Resources Steps within each action including staffing resources and financial considerations are set out in Appendix 1. 7 Tuna Fisheries Strategic Plan 2017–2021 Appendix 1 Implementation Workplan Strategy 1: Tuna management framework is compatible with Palau’s conservation and sustainable fishery objectives in the Marine Sanctuary planning pro- cess, fishing laws and existing policy position No Actions Priority and status Timeframe Lead role Comment Action 1: Define and implement interim VDS management for the longline and purse seine sector 2017-2020 1 Implement PNMS Interim Fisheries Regulation until 2020 In Place until Dec 2019 Expires in 2019 MNRET Implementation of actions covered in components below 2 Define and publish LLVDS Regulation to enter force after the Interim Regulation Medium priority, draft has been completed - needs to be revisited and submitted to OEK Consider by 2020 or sooner MNRET Action 2: Review Palau’s fisheries legislative framework 1 Review existing fisheries and relat- ed laws to ensure compatibility with the PNMS Act and its implementing interim regulation and recommend potential amendments High priority, has not started 2018 MNRET Build on existing FAO work 2 Review Palau’s fisheries legislative framework needs to be collectively reviewed and re-assessed to identi- fy the most efficient and effective legislative structure. This could involve streamlining existing laws under one fisheries Act. High priority, has not started 2018 MNRET Build on existing FAO/FFA work Photo: Jonne Roriz 8 Tuna Fisheries Strategic Plan 2017–2021 Strategy 2: Develop Institutional Capacity within the Ministry of Natural Resource, Environment & Tourism with clear legislative framework No Actions Priority and status Timeframe Lead role Comment Action 1: Organizational Restructuring & Operational Management 1 Review and revise of EO381to clar- ify the role of the Bureau and its Divisions in line with the current fisheries framework and the broad- er Palau fisheries, international and regional standard for national fisheries authorities. High Dec-17 MNRET Build on existing FAO/FFA work 2 Communicate the organizational structure to all staff to ensure they become familiar with the structure and flow of work. High Dec-17 MNRET 3 Develop operations manuals for all the established processes and services to the public for better governance, greater transparency to decision mak- ing and for information sharing. High Dec-17 DOFM 4 Develop reporting process and tem- plate to meet the national, regional and international reporting require- ments High Dec-17 DOFM Action 2: Assess current staffing and capacity needs, recruit and train 1 As soon as possible, hire Division Chief to manage the daily opera- tions and management of the Division. High ASAP 3 –6 months MNRET Build from last FFA Institutional Capaci- ty Assessment 2 Fill the current vacant positions re- quired to support the management of Division and the interim imple- mentation of the Palau National Marine Sanctuary. High ASAP 3 –6 months MNRET Build from last FFA Institutional Capaci- ty Assessment 3 Develop a training plan to ensure enhancing staff knowledge and skills and ensure staff are fully equipped to carry out their duties and functions that includes but not limited to the following: Medium Dec-17 MNRET Build from last FFA Institutional Capaci- ty Assessment Action 3: Define current funding needs and seek funding for fisheries management 1 Identify potential source of funding to support implementation of the interim PNMS Act regulation, fish- eries management cost (core po- sitions, office consumables, equip- ment upgrade) High ASAP 3 –6 months MNRET 2 Conduct feasibility study for cost recovery from licences and trading of vessel day post 2020, fisheries related taxes, fisheries related pen- alties, fines and fees. Medium 2018 MNRET 9 Tuna Fisheries Strategic Plan 2017–2021 Strategy 3: Develop a tuna management plan to meet fishery objectives (defined in regional harvest strategy), support locally based fleets, enhance recre- ational fishing opportunities and minimise bycatch of non-commercial spe- cies No Actions Priority and status Timeframe Lead role Comment Action 1: Conduct a biological and economic assessment of tuna fishery options for Palau post 2020 1 FFA economics and development team and SPC scientists to conduct economic assessment of various fisheries management options High Mid 2017 FFA/SPC/ TNC Action 2: Develop a national fisheries and marine resources policy 1 Seek Ministerial advice on scope and terms of reference High ASAP 3 –6 months MNRET 2 Organize a stakeholder meeting/ workshop to identify policy goals, outcomes and development ap- proach High Second half 2017 MNRET 3 Task a policy development team to liaise with stakeholders and develop draft policy Medium Late 2017–2018 MNRET 4 Seek Ministerial review; amend and implement policy Medium 2018 MNRET Action 3: Develop and implement Palau Fisheries and Marine Resources Management Plan for post 2020 1 Consider outcomes of economic review and objectives of National fisheries policy to define Fisheries Management Plan Scope and objectives Medium 2018 MNRET 2 Organize stakeholder meetings to refine objectives and scope of management plan Medium 2018 MNRET 3 Task fishery managers and legal team to develop draft management plan for consideration by the Minister Medium 2018 MNRET 4 Seek Ministerial review; amend and implement management plan Medium 2018 MNRET 5 Continue to implement best prac- tices mitigation measures for pro- tected species in accordance with WCPFC CMM as well as the best available scientific advice High 2017 on MNRET 10 Tuna Fisheries Strategic Plan 2017–2021 Strategy 4: Support the development of locally based fishing operations with local participation in fishing, port unloading, processing and sale of fish No Actions Priority and status Timeframe Lead role Comment Action 1: Develop a national policy on fisheries development as part of an overall national fisheries policy to address 1 Develop and advance options for domesticating Palau’s tuna fishery – costal fishers targeting nearshore anchored FADs, testing innovative gears and vessels, joint venture with traditional longline vessels, value added tuna products export, small- scale canning & smoking options, dockside infrastructure and opera- tions High 2018–2019 MNRET/ TNC 2 Identify development options for the domestic fishery, including the type of vessels to be utilised licens- ing policy, licensing fees and market- ing options. High Mid 2018– 2018 MNRET 3 Assess infrastructure support requirements particularly the need for a wharf with a space for fish storage Medium Mid 2018– 2018 MNRET 4 Consider recreational fishing op- portunities including the extent to which this fishery is regulated and licensed High ASAP 3 –6 months MNRET 5 Consider financial support and/or taxation incentives to assist Palau- an’s develop the fishery Medium 2018 MNRET Action 2: Consult with industry on options on what is viable and how to fish the area open to commercial fishery 1 Seek views of broad fisheries stake- holders through survey High, start after FFA economic survey second half 2017 2 Prepare a development plan based on the outcome of the market sur- vey, the SPC study on the productiv- ity and expected catches from the 20% area and an economic analysis of the viability of the fishery Medium/High 2017/ early 2018 MNRET 3 Assess the impact on the viability for the domestic industry if export of high grade fish is/is not permit- ted and if they are allowed to fish in neighbouring EEZs and/or the high seas. Medium/High 2017/ early 2018 11 Tuna Fisheries Strategic Plan 2017–2021 Strategy 5: Develop a national Monitoring Control Surveillance strategy that includes the Palau National Marine Sanctuary and the fisheries sector No Actions Priority and status Timeframe Lead role Comment Action 1: Develop fishery monitoring, compliance and enforcement program for the interim period and post 2020 and ensure it is aligned with existing MCS objectives for the marine parks 1 Seek Ministerial direction on devel- oping a monitoring and surveillance strategy that applies across all of Palau's waters High ASAP 3 –6 months MNRET 2 Organize meetings and consulta- tion with stakeholders to define objectives, strategies, actions and resources High Second half 2017 3 Cross agency drafting team to pro- duce and implement a national MCS strategy and enforcement program Medium 2018 MNRET Action 2: Improve the efficiency, reliability of monitoring systems and data collection 1 TNC and MNRET continue ER and EM trials Underway, High 2017 MNRET 2 Support mandatory use of ER on all longline fishing boats from 2018 High 2017–2018 MNRET 3 Support EM so it is phased in across all longline fishing boats by 2020 Medium 2017–2019 MNRET Photo: Jonne Roriz Notes