RAP PUBLICATION 2012/20 Anchored fish aggregating devices for artisanal fisheries in South and Southeast Asia: benefits and risks RAP PUBLICATION 2012/20 Anchored fish aggregating devices for artisanal fisheries in South and Southeast Asia: benefits and risks Steve Beverly, Don Griffiths and Robert Lee THE FOOD AND AGRICULTURE ORGANIZATION OF THE UNITED NATIONS REGIONAL OFFICE FOR ASIA AND THE PACIFIC BANGKOK, 2012 The designations employed and the presentation of material in this information product do not imply the expression of any opinion whatsoever on the part of the Food and Agriculture Organization of the United Nations (FAO) concerning the legal or development status of any country, territory, city or area or of its authorities, or concerning the delimitation of its frontiers or boundaries. The mention of specific companies or products of manufacturers, whether or not these have been patented, does not imply that these have been endorsed or recommended by FAO in preference to others of a similar nature that are not mentioned. ISBN 978-92-5-107376-6 All rights reserved. FAO encourages reproduction and dissemination of material in this information product. Non-commercial uses will be authorized free of charge. Reproduction for resale or other commercial purposes, including educational purposes, may incur fees. Applications for permission to reproduce or disseminate FAO copyright materials and all other queries on rights and licences, should be addressed by e-mail to [email protected] or to the Chief, Publishing Policy and Support Branch, Office of Knowledge Exchange, Research and Extension, FAO, Viale delle Terme di Caracalla, 00153 Rome, Italy. © FAO 2012 Citation: Beverly, S., Griffiths D. & Lee, R. (2012). Anchored fish aggregating devices for artisanal fisheries in South and Southeast Asia: benefits and risks. FAO Regional Office for Asia and the Pacific, Bangkok, Thailand, RAP Publication 2012/20,65p. Foreword For centuries fishers have known that fish are attracted to and congregate around naturally occurring floating objects. By fishing close to these, they can often bring back fish for their families. They have also learned that by placing their own floating objects in the sea that fish would aggregate around them making catching easier. These man-made objects are called Fish Aggregating Devices or FADs and they can be either drifting or anchored. Since FADs can improve fish catches, governments and national fisheries agencies in the Asia region are examining the merits of using anchored FAD programmes. Their policy objectives are typically improved food security through better availability of localized aquatic animal protein, increasing the reliability of income from fishing for artisanal fishers and the creation of employment in coastal areas through fish and aquatic product trading and processing. In the last decade or so, FADs for both artisanal and commercial/industrial fisheries have proliferated in Asia and the Pacific region. In some areas this has caused concern about the potential negative impacts on fisheries and the marine environment. This has led environmental and conservation groups to lobby for FAD-free caught tuna, particularly in industrial type tuna fisheries. This publication responds to requests from governments within the region for additional information on the use of anchored fish aggregating devices for artisanal fisheries. It was produced by the Spanish-funded and FAO-executed Regional Fisheries Livelihoods Programme (RFLP), which is conducting activities in Cambodia, Indonesia, the Philippines, Sri Lanka, Timor-Leste and Viet Nam. The book highlights the potential benefits of well co-managed anchored FAD programmes, which can contribute to overall food security. It covers the planning and background research requirements and emphasizes the importance and need for holistic and inclusive community consultation and monitoring processes and the development of enabling policies. The book also covers the environmental concerns and possible negative ecosystem impacts of unplanned and poorly managed programmes, which inevitably lead to unsustainable resource exploitation and financial and economic losses. An Advisory note was also developed as a summary and findings of this book to promote responsible planning, implementation and monitoring of anchored fish aggregating devices for artisanal fisheries in line with the FAO Code of Conduct for Responsible Fisheries (http://www.fao.org/docrep/005/v9878e/v9878e00. HTM). It provides recommendations to governments, fisheries agencies, donors and other key stakeholders on the technical, socio-economic and environmental aspects to be considered before deciding on whether to embark on a FAD programme. Hiroyuki Konuma Assistant Director-General and Regional Representative FAO Regional Office for Asia and the Pacific Anchored fish aggregating devices for artisanal fisheries in South and Southeast Asia: benefits and risks i Preparation of this document This report was supported by the Spanish-funded and FAO-executed Regional Fisheries Livelihoods Programme (RFLP), which is conducting activities in collaboration with the line agencies for fisheries in the Kingdom of Cambodia, the Republic of Indonesia, the Republic of the Philippines, the Democratic Socialist Republic of Sri Lanka, the Democratic Republic of Timor-Leste, and the Socialist Republic of Viet Nam. The RFLP’s objective is to reduce the vulnerability of small scale fishers in South and Southeast Asia by: • Introducing co-management mechanisms for sustainable utilization of fishery resources; • Improving safety at sea and reducing vulnerability of fisher communities; • Improving the quality of fishery products and market chains; • Strengthening existing and diversifying alternative income opportunities for fisher/fishing families; • Facilitating access to micro-finance services for fishers, processors and vendors; and • Sharing knowledge and advocacy in support of livelihoods development in order to reduce the vulnerability of fisher/fishing communities and to promote sustainable fisheries resource management. The primary stakeholders and target beneficiaries are (i) coastal fishers, processors, traders and their families, their organizations and their communities, including the local authorities and; (ii) government organizations and institutions responsible for the administration, management and development of the coastal fisheries at local, district/province and national levels. The RFLP outcome will be: ‘Strengthened capacity among participating small- scale fishing communities and their supporting institutions towards improved livelihoods and sustainable fisheries resources management’. Several RFLP countries are, or are considering, using FAD programmes to improve food security and to contribute to the livelihoods of coastal communities. RFLP supported the development of a stand-alone advisory note and this publication to provide well balanced guidance and information for South and Southeast Asian countries that are considering supporting similar anchored FAD programmes. The authors would like to thank Jose Parajua, Simon Funge-Smith, Rudi Hermes and Steve Needham for their constructive feedback to this document. iv AAnncchhored fish aggregating devices for artisanal fisheries in South and Southeast Asia: benefits and risks Abstract Fish Aggregating Devices, also known as FADs, have been used to attract fish, making them easier to catch and reducing fuel costs when searching for schools of pelagic fish. FADs are used by both industrial fishing fleets fishing the high seas for tunas and tuna-like species, as well as by artisanal fishing communities as a means of providing for their food security and livelihoods. It is necessary to distinguish between industrial anchored and drifting FADs used by large purse seiners and artisanal anchored FADs, because the scale of operation and the objectives are different. Different quantities of fish are caught and different types of fishing gear are used. The size selectivity of aquatic species caught, including sharks and turtles, and other endangered, threatened or protected species, is influenced by the type of gear used for fishing. In addition, industrial FADs are used in large numbers all over the high seas, while artisanal anchored FADs are usually located near coastal fishing communities and are important for local food security, nutrition and livelihoods. Some countries in Southeast Asia are embarking on anchored FAD programmes to boost fish production and to increase food security. This document provides supplementary detailed analyses of the benefits, risks and threats related to the implementation of FAD programmes and specifically for artisanal anchored FADs. The analysis shows that while anchored FADs can bring important benefits to fishing communities in terms of food security and livelihoods, it is necessary to properly plan the intervention as there are many pitfalls which can cause programmes to become unsustainable, resulting in losses for both governments and fishing communities. FADs can also be a source of pollution, and can obstruct navigation and other fishing activities, leading to social conflict. Chapter one of this publication gives a brief background on FADs and the purpose of this publication. Chapter two describes what a FAD is and explains some of the main differences between artisanal anchored (fixed) and industrial anchored and drifting FADs. Chapter three explores the benefits, risks and threats associated with FADs. These include fisheries management and economic and financial as well as socio-economic issues. Gender and climate change are also covered/ treated in this chapter. A series of annexes in this publication provide specialist technical information. Annex 1 offers details on how to choose a site for a FAD programme and how to construct and install an artisanal anchored FAD, as well as links to where additional FADs information can be found. Annexes 2, 3 and 4 present case studies on FADs from Niue, the Southwest Indian Ocean and the Comoros, while Annex 5 gives some guidance on good fishing practices around FADs for artisanal fishers with some common species, fishing methods, fish handling and sanitation practices. References and further reading are provided at the end of the publication. Finally, the FAO 1995 Code of Conduct for Responsible Fisheries and its supplement on Technical Guidelines for the Implementation of the Code of Conduct – Fishing Operations provides guidance on the installation of FADs. Countries wishing to implement FAD programmes should take these into account. Anchored fish aggregating devices for artisanal fisheries in South and Southeast Asia: benefits and risks v Abbreviations and acronyms ⁰C Degree centigrade cm Centimetre CPUE Catch per unit effort FAD Fish aggregating device FAO Food and Agriculture Organization (United Nations) IFREMER French Institute for the Exploitation of the Sea IGO Inter-governmental organization ILO International Labour organization (United Nations) IRD French Institute for Research and Development kg Kilogram l Litre lb Pound m Metre mm Millimetre MPA Marine Protected Area NGO Non-governmental organization nm Nautical mile RFLP Regional Fisheries Livelihoods Programme NZD New Zealand Dollar RFMO Regional Fishery Management Organization SPC Secretariat of the Pacific Community SWIOP Southwest Indian Ocean Project t Tonne UNDP United Nations Development Programme USD United States Dollar vi AAnnncchhored fish aggregating devices for artisanal fisheries in South and Southeast Asia: benefits and risks Table of contents Foreword iii Preparation of this document iv Abstract v Abbreviations and acronyms vi 1. Introduction 1 2. What are fish aggregating devices (FADs)? 3 3. FAD programmes – benefits, risks and threats 5 3.1 Benefits 6 3.1.1 Food security 6 3.1.2 Economics 6 3.1.3 Safety 7 3.1.4 Management 7 3.1.5 Code of Conduct for Responsible Fisheries 1995 8 3.2 Risks and threats for and by anchored FAD programmes 9 3.2.1 Environmental risks 9 3.2.2 Concentration and species re-distribution 9 3.2.3 Sanctuaries and protected areas 10 3.2.4 Bycatch and discards 10 3.2.5 Marine debris 10 3.2.6 Navigation and shopping 10 3.3 Negative economic impacts 11 3.3.1 Market access 11 3.3.2 Financial costs 11 3.3.3 Conflict between users 12 3.3.4 Lack of legislation and regulations 12 3.3.5 Lack of guidelines 13 3.3.6 Women and gender issues 13 3.3.7 Technical risks – longevity 14 3.3.8 Climate change 14 4. Conclusions and recommendations 15 Annex 1. Technical guidance on siting, construction, deployment and maintenance of anchored FADs 17 Annex 2. Case study I – Niue 27 Annex 3. Case study II – Southwest Indian Ocean 29 Annex 4. Case study III – Comoros 31 Annex 5. Anchored FAD best fishing practices 33 References and further reading 35 Anchored fish aggregating devices for artisanal fisheries in South and Southeast Asia: benefits and risks v Table of contents List of tables Table 1 Site depths and mooring line lengths for shallow (100 to 800 m) and deep (900 to 1 500 m) water FADs 19 List of figures Figure 1 Bringing yellowfin tuna ashore, the Philippines. 1 Figure 2 A fisher with his bamboo payao, Timor-Leste. 2 Figure 3 A payao FAD. 3 Figure 4 Different FAD buoys (from left to right Payao, Spar buoy and Indian Ocean FAD). 4 Figure 5 Billfish caught at a FAD. 5 Figure 6 Purse line of a purse seiner entangled around an anchored FAD. 12 Figure 7 Woman fish vendor, Sri Lanka. 13 Figure 8 A bamboo anchored FAD, Panachais locally managed marine area, Papua New Guinea. 16 Figure 9 Construction of various FAD types. 17 Figure 10 Catenary curve keeping the mooring ropes away from the surface and off the sea bed. 18 Figure 11 Okinawan subsurface FAD buoy and aggregator. 19 Figure 12 Diagram of an artisanal sub-surface FAD. 20 Figure 13 Spar buoy with solar panel. 20 Figure 14 Concrete block FAD anchor. 21 Figure 15 Forklift counterweight FAD anchor. 21 Figure 16 FAD anchors made with concrete filled steel oil drums. 21 Figure 17 Grapnel FAD anchor being deployed. 21 Figure 18 Indian Ocean FAD with plastic strapping aggregator. 22 Figure 19 Combination rope eye splice with stainless steel thimble and whipping. 23 Figure 20 Loading an Indian Ocean FAD onto the deployment vessel. 23 Figure 21 Eye splice in rope connector, shackle, swivel, shackle, and anchor chain. Shackles are welded and secured with seizing wire. 23 Figure 22 Diagram of a catenary FAD (Indian Ocean) showing all components except the flag. 24 Figure 23 Divers inspecting an Indian Ocean FAD. 25 Figure 24 Maintaining the cold chain by using ice slurry. 33 Figure 25 Palu ahi fishing method. 34 viii AAnnncchhored fish aggregating devices for artisanal fisheries in South and Southeast Asia: benefits and risks 1. Introduction In their quest to improve food security, some countries in South and Southeast Asia are promoting the deployment of fish aggregating devices, also known as FADs. For any government considering investing in and supporting a FAD programme it is critical that the programme is viewed as one element within the overall fishery, which is to be managed using an ecosystems approach to fisheries management. A FAD programme must be approached in a holistic manner so that resource management and environmental, socio-economic and technical aspects are given proper consideration. Otherwise the FAD programme will be unsustainable and will result in financial and economic losses and possible negative impacts on aquatic resources and the marine environment in which they live. Properly planned and implemented FADs programmes require due diligence in identifying risk, adequate research, consultative stakeholder processes and involvement of fishers in catch and effort monitoring and the formulation of good policies and regulations that can bring financial and economic benefits to the fishing communities and support sustainable fisheries livelihoods and management. Anchored FADs can however be an important tool for the development of sustainable artisanal and small-scale commercial fisheries, increasing localized catches at reduced costs and thereby improving food security and livelihoods for coastal communities in developing countries. “In reviewing the history of development of small-scale tuna fisheries, one of the few initiatives that has been successful and continues to contribute to the success of small-scale fisheries is the FAD. Despite decades of small-scale tuna development efforts, FADs remain one of the few innovations that allow small-scale fishers to economically take advantage of the region’s large tuna resources. Other attempts may have had sporadic success or special applicability in one country, but overall, nothing comes close to producing on-going benefits to Figure 1. Bringing yellowfin tuna ashore, small-scale tuna fishers as the FAD.” the Philippines. Bob Gillett (2003). Anchored fish aggregating devices for artisanal fisheries in South and Southeast Asia: benefits and risks 1