IUCN Country Office Guinea-Bissau Artisanal fishing, sustainable development and co-management of resources Analysis of a successful project in West Africa Eric Baran and Philippe Tous Artisanal fishing, sustainable development and co-management of resources Analysis of a successful project in West Africa Eric Baran, Philippe Tous IUCN - The World Conservation Union 2000 The designation of geographical entities in this book, and the presentation of the material, do not imply the expression of any opinion whatsoever on the part of IUCN or the Swiss Agency for Development and Cooperation (SDC) concerning the legal status of any country, territory, or area, or of its authorities, or concerning the delimitation of its frontiers or boundaries. The views expressed in this publication do not necessarily reflect those of IUCN or the Swiss Agency for Development and Cooperation (SDC). This publication has been made possible in large part by funding from the Swiss Agency for Development and Cooperation (SDC). Published by: IUCN, Gland, Switzerland and Cambridge, UK IUCN The World Conservation Union Copyright: © 2000 International Union for Conservation of Nature and Natural Resources Reproduction of this publication for educational or other non-commercial purposes is authorised without prior written permission from the copyright holder provided the source is fully acknowledged. Reproduction of this publication for resale or other commercial purposes is prohibited without prior written permission of the copyright holder. Citation: Baran, E. and Tous, P. (2000). Artisanal fishing, sustainable development and co- management of resources: Analysis of a successful project in West Africa. IUCN, Gland, Switzerland and Cambridge, UK. iv + 42pp. Translation: Louize Hill for Chaleebaran Consultancy ISBN: 2-8317-0535-5 Cover photos: Eric Féron and Philippe Tous Cover design: IUCN Publications Services Unit Produced by: IUCN Publications Services Unit Layout by: IUCN Publications Services Unit Printed by: Page Brothers (Norwich) Ltd, UK Available from: IUCN Publications Services Unit 219c Huntingdon Road, Cambridge CB3 0DL, United Kingdom Tel: +44 1223 277894, Fax: +44 1223 277175 E-mail: [email protected] http://www.iucn.org A catalogue of IUCN publications is also available. The text of this book is printed on Fineblade Extra 90gsm made from low chlorine pulp. Contents Summary iv Introduction 1 Context 3 Guinea-Bissau 3 Rio Grande de Buba region 5 Conceptual bases of the project 9 Principles and aims 9 Strategic axes 11 Project interest from a development point of view 11 Project interest from an environmental point of view 12 Chosen site and mechanisms 13 Choice of the site 13 Project mechanisms 14 Setting up and results 19 First phase: 1992–1994 19 Second phase: 1995–1997 20 Third phase: 1998–2000 22 Project achievements 25 Knowledge about the resource and the environment 25 Knowledge about and monitoring of the fishery 25 Co-management of the resource 26 Contribution to development 27 Sustainability of the project 28 Critical analysis and debate 29 Knowledge about the resource and the environment 29 Knowledge about and monitoring of the fishery 30 Co-management of the resource 31 Contribution to development 32 Sustainability of the project 33 Reproducibility of the project 35 Reproducibility: negative points 35 Particular case that is favourable to the success of the project 35 Reproducibility: positive points 36 Overview and conclusions 37 Abbreviations and acronyms 40 Bibliography 41 iii Summary This document brings together the achievements of a project for the co-management and valorisation of fisheries resources, carried out by the IUCN in Guinea-Bissau since 1991 (Rio Grande de Buba region). After a short description of the physical and human environment of the country and region respectively, the conceptual bases of this project are detailed and explained. This shows that the project anticipated important recommendations made at an international level. It was thus one of the first projects to implement the notions of sustainable management of the resource, the precautionary principle and a participatory approach in the field. The principal mechanisms of this project are presented. Based on an integrated approach within the field of fisheries, they consist of: • involvement of all parties (communities and institutions) via a co-ordination committee • carrying out of modular micro-projects (training of people, transformation of fish,...) • establishing an initial financing system, (micro-credit type) • bio-ecological monitoring of the resource • institutional and judicial support for the State After a brief presentation of the activities undertaken between 1992 and 1998, the achievements are detailed. They are examined from the point of view of the knowledge of the resource and the environment, knowledge and monitoring of the fishery, co-management of the resource, contribution to development, and sustainability of the project. This part is followed by an analysis of the project. This examines the same points and for each of them provides critical elements that can be debated. The qualities of this project encourage its reproduction, one chapter looks at this topic. It lists the negative experiences, the particularities that proved favourable to the project and the positive points in view of its reproduction. The last part summarises this information, schematises the functioning of this project, and based on the lessons learnt proposes a framework for generalised replication in other contexts. iv Introduction Guinea-Bissau is an agricultural country. It is largely open to the sea. The country is characterised by its search for a means of sustainable development and it has a strong environmental conscience. This is illustrated by the existence of a Ministry of Environment, Tourism and Artisanal work as well as a National Council for the Environment within the government. IUCN – The World Conservation Union has been present in this country since 1989, promoting develop- ment through a wise use of coastal resources and the preservation of the country's rich natural heritage. The IUCN project entitled "Sustainable development of artisanal fishing in the Rio Grande de Buba" began within this framework in 1992. It is financed by the Directorate of Development and Cooperation of the Federal Department of Foreign Affairs of the Swiss Confederation. This responded to a wish to develop an artisanal fisheries project to show what sustainable management of fisheries resources could be within the context of Guinea-Bissau, and to serve as an example in other coastal regions. This report aims to provide a summary analysis of the approach taken by this project and its achievements, in order to provide a set of guidelines and to learn lessons to be able to replicate the project in other sites. 1 Context Guinea-Bissau Key: Base line defining the coastal zone: General physical and human geography Guinea-Bissau has a surface area of approximately 36,000km2, of which 2/3 are influenced by tides (23,500km2 of coastal zone = 65% of the national coastal area). The coastline is 275km long. Opposite the continent are the Bijagos Islands, an archipelago which are difficult to access (shallow waters, strong sea currents). They are well conserved and have an extremely rich marine fauna (including manatees, dolphins, sea turtles,...). In 1996 UNESCO classified these islands as a Biosphere Reserve. The climate is tropical, hot and wet; the rainy season extends from June to November (with South- western winds) and the dry season is from December to May when the harmattan wind blows from the North-east. Total population: 1,179,000 inhabitants. Population in the coastal zone: 65% of the national population Population density in the coastal zone: 36 hab/km2 Life expectancy: 48.7lyrs. Rate: birth: 39.17 births / 1.000 inhabitants Age structure: 0–14yrs: 43% death: 15.85 deaths / 1.000 inhabitants 1—64yrs: 54% fertility: 5.26 children / woman 65yrs and over: 3% population growth: 2.33% 3 Artisanal fishing, sustainable development and co-management of resources Ethnic groups: Balantes 30% Number of languages: 23 Fulas 20% Religions: Animists 65% Manjaques 14% Muslims 30% Mandingues 13% Christians 5% Pepels 7% Others: less than 5% Literacy rate: 54.9% (1995) Guinea-Bissau is one of the poorest countries in the world: GDP per inhabitant: $950 (1996) External debt: US$816 million (1994) Exports: US$33 millions (1994) Imports: US$52.4 million (1994) Agriculture and fishing are the principal economic activities. Cashew nuts, palm nuts, wood, peanuts and fish are the country's primary products. In 1997 Guinea-Bissau was classed 163rd out of 175 countries on the United Nations Human Development Index.1 Specificity of the marine environment and of the fishing sector From a geomorphologic viewpoint, the coastal characteristics of Guinea-Bissau represent a particular environment with important biological consequences. The continental shelf is exceptionally wide (less than 20m deep as far as 180km out to sea). This creates strong tidal waves (tidal range reaching 6m) and turbulent coastal hydrodynamics; the water is turbid to very turbid along the coast (Diop, 1990). This coast is bordered by an important mangrove and is brackish from July to October (Berrit, 1966). Upwelling (a phenomenon of cold and biologically rich waters brought to the surface) occurs during January-February (Rossignol and Meyrueis, 1964). Guinea-Bissau therefore combines Senegalese (upwelling) and Guinean (turbidity, brackish water) type environmental factors. From a marine fauna perspective this creates a zone that is biogeographically distinct from its neighbours (from Cape Roxo to Cape Verga; Postel, 1968). These factors are particularly favourable from a fisheries point of view, and the zone is considered as one of the richest in West Africa (Williams, 1964; Domain in ORSTOM 1977). Along the coast the shallow waters and mangroves are favourable factors for juveniles. They constitute nursery areas for numerous species of fish and crustaceans (Yañez-Arancibia, 1985; Day et al, 1989). This zone is considered as playing a fundamental role in recruitment for stocks exploited by the fishing industry in Guinea-Bissau and in the neighbouring countries, Senegal and Guinea (Domain, 1989). Despite its potential, the fishing sector in Guinea-Bissau has only recently been developed. Fishing represents 40% of financial income in the country, mainly through fishing licences and agreements. Nevertheless, fish is not the dominant export. The Fisheries Ministry was separated from Agriculture during the 80's. It has two areas of concern: small-scale fishing, (high number of projects financed by diverse cooperation agencies), and industrial fishing (fishing agreements with the European Union since 1982). An applied Research Centre was also created at this time, but until the early 90's this was a neglected side of the fishing administration. 1 Estimations from 1997, according to the CIA World Fact Book http://www.odci.gov/cia/publications/factbook/pu.html 4 Context The Fishing Law was deeply revised in the late 90's, especially regarding the definition and regulation of small-scale fishing (Kromer, 1995 and EEC/FAO, 1996). The new 1997 law, amongst other things, intro- duced the notion of resource co-management. Rio Grande de Buba region The Rio Grande de Buba region has the same geological formation as the rest of the country, but is characterised by the presence of a ria (an ex-river valley that has been filled by the sea). It is very branched and has only low inputs of fresh water. However there are small zones of springs upstream, around which the fishermen place blocking nets ("mpandé"). Surface area: 285km2, average depth: 30m, maximum depth: 60m. High tidal range of between 2.5 and 6m amplitude. Total length: 52km. Because of its size and the low input of fresh water, the Rio Grande de Buba can be considered as a sea inlet or as a real estuary (Diop, 1990). Flora and fauna The banks of the Rio are fringed by a narrow mangrove then by dry forests. The region is covered with dry and sub-humid forests, which in places are degraded. In the more humid South, agriculture is characterised by perennial plantations (palm trees, citrus fruits) and in the North by subsistence cultures (peanuts, tubers). Everywhere the natural vegetation cover is parcelled by the pluvial rice – cashew trees succession. The wild fauna is quite rich and there are important populations of birds (including several species of migratory birds that over-winter on Lake Cufada – a RAMSAR site since 1996). This is the most western limit of the distribution of the Chimpanzee Pan troglodytes verus and numerous other mammals are on the IUCN Red List. The aquatic fauna is particularly noteworthy due to the presence of the African manatee {Trichechus senegalensis) and of two species of dolphin (Tursiops truncatus and Souza teuszii). There are more than one hundred characteristic species of fish, both in marine and estuarine environments: coastal fish (Mugilids, Cichlids), demersal fish (Sparids, Lutjanids, Ariids) and pelagic fish (Clupeids, Scombrids, Carangids, Sphyraenids). The latter group only enters the Rio to carry out part of their life cycle. 5 Artisanal fishing, sustainable development and co-management of resources Sociological and cultural context The different phases of the country's history have marked this region more than other regions of Guinea- Bissau. Navigators have known the Rio Grande since the 15th century because of its shallow waters and shelter. It was first clearly mentioned by Vasco de Gama in his narrative about his first voyage in 1499. Since the 15th century there has been a strong Portuguese presence. The region was the site of intensive battles during the war for independence (1962–1974). It was then largely neglected by the important development projects during the socialist period (1975–1990). During this latter period social and material organisation was very centralised, without any sort of community-based counter-power. The region is essentially rural and has 45,000 inhabitants (in 1991; this is 0.5% of the national population). The main towns (Buba, Bolama, Empada) have 2000, 4000 and 1700 inhabitants respectively. There is no industry, services (electricity, water, health, education) are inadequate or absent. The region is globally very isolated. Since 1994 there is however a good road that joins Buba to Bissau. This region is mainly inhabited by the Beafada ethnic group (about two thirds of the population, the rest are Peuls and Papels). Therefore the region where the project has been carried out corresponds essentially to a single ethnic group, and to a single administrative region (Quinara region). Within the Beafada ethnic group the power structure is transversal. Decisions concerning the community are made in a collegial way and participation in community activities is the concern of all community members. The Beafadas are traditionally sedentary and are mainly farmers. Until recently they only fished to feed themselves on the borders of the villages. At present fishing activities are not very developed, but it should be noted that many individuals call themselves fishermen or say that they are ready to become full time fishermen. Until the independence of Guinea-Bissau, the colonial powers apparently never tried to develop the local artisanal fisheries sector. The means for productive output by the coastal populations remained rudimentary, and fishing never developed at a commercial level (supplying inland markets or exports for example). Furthermore, for the majority of these populations, the proximity and abundance of the resources kept fishing at an intermediate subsistence level. The only transformation carried out was drying. Paradoxically, trans- formed products (" bacalhau " i.e.: salt-cod fish) were imported from Portugal and were increasingly consumed by the population. Replacement by transforming local species was not undertaken. Given the very low exploitation rate by locals, since the 1970's foreign small-scale fishermen, mainly from Senegal and Guinea, have been coming to Guinea-Bissau to look for the abundant fisheries resource (Bouju, 1994). This movement has been becoming more important during recent years and these fishermen are the cause of concern about the sustainability of the resource. 6