Baseline Study
& Performance Indicators for the Pacific
Islands Oceanic Fisheries Management
Project (OFMP)
A Report Prepared for the
Pacific Islands Forum Fisheries Agency (FFA)
by Ian Cartwright, Thalassa Consulting Pty Ltd
21 NOVEMBER 2008

PUBLISHED BY
Pacific Islands Oceanic Fisheries Project
Pacific Islands Forum Fisheries Agency
P.O. Box 629
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Solomon Islands
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Abbreviations
APR
Annual Performance Report
CES
catch and effort query system
CFP
Coastal Fisheries Programme
CMM
conservation and management measure
CPUE
catch per unit of fishing effort
DWFN
distant water fishing nation
EAFM
ecological approach to fisheries management
ECOPATH/ECOSIM an ecological/ecosystem modelling software suite; ECOPATH is a static, mass-
balanced snapshot of the system and ECOSIM time dynamic simulation module for
policy exploration
EEZ
exclusive economic zone
ENSO
El Nino / Southern Oscillation
EPO
eastern Pacific Ocean
ETP
eastern tropical Pacific
EU
European Union
FAD
fish aggregating device
FAO
Food and Agriculture Organisation of the United Nations
FFA
Forum Fisheries Agency
FFC
Forum Fisheries Committee
GEF
Global Environment Facility
GLOBEC
global ocean ecosystem dynamics
IBM
individual based modelling
IUCN
International Union for the Conservation of Nature
IUU
illegal, unregulated and unreported (fishing)
IW
International Waters
LFA
logical framework analysis
LL
longline
LME
large marine ecosystem
LOSC
UN Law of the Sea Convention, 1982
MCS
monitoring, control and surveillance
ME
monitoring and evaluation
MHLC
Multilateral High Level Conference on the Conservation and Management of Highly
Migratory Fish Stocks in the Western and Central Pacific
MSY
maximum sustainable yield
MULTIFAN-CL
a length-based age-structured computer model used for fish stock assessment
NFA
National Fisheries Assessment
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& Performance Indicators for the Pacific Islands Oceanic Fisheries Management Project (OFMP)

NMFS
National Marine Fisheries Service
NPOA
National Plan of Action
OFCCP
Ocean Fisheries and Climate Change Project
OFM
oceanic fisheries management
OFMP
Oceanic Fisheries Management Project
OFP
Oceanic Fisheries Programme of the Secretariat to the Pacific Community
OP
Operational Programme
PacSIDS
Pacific Small Island Developing States
PCU
Project Coordination Unit
PDO
Pacific Decadal Oscillation
PFRP/UH
Pelagic Fisheries Research Programme/University of Hawaii
PIR
Project Implementation Review
PPR
Project Performance Results
ProDOC
Project Document
PS
purse seine
RFMO
regional fisheries management organisation
RTTP
Regional Tuna Tagging Programme
SAP
Strategic Action Programme
SCTB
Standing Committee on Tuna and Billfish
SEPODYM
spatial environmental population dynamic model
SP
Strategic Programme
SPC
Secretariat to the Pacific Community
SPRTRAMP
South Pacific Regional Tuna Research and Monitoring Programme
SSAP
Skipjack Survey and Assessment Programme
STAP
Scientific and Technical Advisory Panel
TFA
Tuna Fisheries Assessment
TMP
Tuna Management Plan
TUFMAN
Tuna Fisheries Management Database
UNDP
United Nations Development Programme
UNEP
United Nations Environmental Programme
UNFSA
United Nations Implementing Agreement on Highly Migratory Fish Stocks and
Straddling Fish Stocks 1995 (short title)
VDS
Vessel Days Scheme
VMS
vessel monitoring system, based on satellite-based tracking
WCP-CA
Western and Central Pacific Commission Area
WCPF
Western and Central Pacific Fisheries
WCPO
western and central Pacific Ocean
WTP
Western Tropical Pacific
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Table of contents
Part 1: A review of the GEF IW indicators framework and its application to the OFMP
10

1. Introduction
10

2. GEF international Waters Operational Strategy
10

3. Implementing GEF IW Projects
11

4. Monitoring and Evaluation approaches
11

4.1 The Logical Framework Approach (LFA)
11

4.2 Performance Measures
12

5. Monitoring and evaluation for the OFMP
13

5.1 Annex B indicators
13

5.2 GEF/IW Indicators
14

5.3 Annual Reporting
15

5.3.1 The APR/PIR
16

5.3.2 GEF Project Performance Results Report
18
Part 2: A Baseline Study of the Oceanic Fisheries of WCPFO
21

1. Introduction
21

1.1 Overview of the OFMP
21

1.2 The Baseline Study
22

2. Biology and status of key tuna stocks
23

2.1 General biology
23

2.2 Status of key stocks and impacts of fishing
24

2.2.1 Skipjack
24

2.2.2 Yellowfin
26

2.2.3 Bigeye
28

2.2.4 South Pacific Albacore
30

3 Ecosystem considerations
34

3.1 Impacts of fishing
34

3.1.1 Target species
34

3.1 .2 Bycatch and by-product species
34

3.2 The Western Tropical Pacific Warm Pool LME
32

3.2.1 Physical environment
32

3.2.2 Ecosystem dynamics
32

3.2.3 Trophic structure
32

3.2.4 Ecosystem monitoring
39

3.3 Ecology of seamounts and associated effects of fishing
39
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Table of contents

4. WCPO Tuna Fisheries
41

4.1 Purse seine
42

4.2 Longline
44

4.3 Pole and Line
45

5. Management Issues
46

5.1 WCPF Convention and Commission
46

6 Scientific Assessment and Monitoring Arrangements
48

6.1 Statistics and monitoring
48

6.1.1 Current status
48

6.1.2 Key future activities related to the OFMP
50

6.2. Tuna ecology and biology
50

6.2.1 Current research
50

6.2.2 Key future activities related to the OFMP
52

6.3 Stock Assessment and modelling
52

6.3.1 Current research activity
52

7. Fisheries management, including fisheries law, policy and compliance
54

7.1 Fisheries Legislation
54

7.2 Fisheries policy
55

7.3 National Fisheries Institutions
56

7.4 Fisheries Compliance
57

8. Information dissemination and stakeholder engagement
58

8.1 Information dissemination and awareness raising
58

8.2 Stakeholder engagement
58
Attachments
Attachment 1 Terms of Reference
62
Attachment 2 Suggested indicators and baselines for Section 4

reporting under the PIR/APR
65
Attachment 3 Suggested indicators and baselines for Section III of the PIR (GEF)
72
Attachment 4 Baseline status of National monitoring and stock assessment in

OFMP Beneficiary Countries
83
Attachment 5 Baseline Status of National legislation and policies in

OFMP Beneficiary Countries
88
Attachment 6 Baseline Status of Compliance in OFMP Beneficiary Countries
92
Attachment 7 Socio-economic indicators
95
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Project background, purposes and approach
Introduction
THE UNDP/GEF-supported International Waters Project (IW-Project) for the Pacific Small Island Developing
States (PacSIDS) has had a significant input into oceanic fisheries management and research in the Pacific
Islands region. This input commenced with a Pacific SAP (Strategic Action Programme) Project (RAS/98/G32),
implemented between 1999 and 2004. This project had two components: i) oceanic fisheries management
and ii) integrated coastal and watershed management. The three-year oceanic fisheries management element
was considered a pilot, and underpinned the successful conclusion and entry into force of the Western and
Central Pacific Fisheries (WCPF) Convention.
In 2004 the GEF PDF-B fund supported the design of a second SAP project, the Pacific Islands Oceanic Fisheries
Management Project (OFMP), which commenced in late 2005. This five-year project is designed to assist
Pacific island countries as they reform, realign and restructure their national fisheries laws, policies, institutions
and programmes to take up the new opportunities which the WCPF Convention creates, and discharge the
responsibilities which the Convention requires.
Purpose of the Report
The purpose of this Report is to:
i review the applicable GEF international Waters Operational Strategy, describe the GEF

International Waters process, stress-reduction and environmental status indicators

framework at a project level1 and suggest any appropriate revisions;
ii describe the baseline situation, in mid-2005 before OFMP implementation in relation to:
a. measures in place at national, sub-regional and regional level for the conservation

and management of the oceanic fish stocks of the WCPO and the protection of

the WTP LME (Western Tropical Pacific Large Marine Ecosystem) from fisheries

impacts;
b. the status of the fisheries, the target stocks and the ecosystem including trophic

status and status of key non-target species; and
c. initial measures of the GEF monitoring and evaluation indicators outlined in the

project Logframe Matrix (Annex L).
A terms of reference is provided as Attachment 1.
1
In the context of the project logframe matrix (Annex L) of the OFMP Project Document (ProDoc), for the three Project components
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& Performance Indicators for the Pacific Islands Oceanic Fisheries Management Project (OFMP)

Study approach
The work was undertaken largely as a desk study using information available from the Pacific Islands Forum
Fisheries Agency (FFA), the Secretariat of the Pacific Community Pacific Oceanic Fisheries Programme (SPC/
OFP) and the websites of the Global Environment Facility (GEF) and United Nations Development Programme
(UNDP).
To promote continuity, the Study draws from, and builds on:
·
theBaselineandProgressStudiesundertakenforthePilotPhaseoftheOceanicFisheries
Management Component of the GEF IW SAP Project;
·
theTerminalEvaluationfortheOFMcomponentoftheSAPProgrammeforInternationalWaters;
·
theOFMPprojectdocumentandtheresultingcountryreportsandanalysis;and
·
Visitsweremadetothetwoimplementingregionalorganisations:
- the Secretariat to the Pacific Commission (SPC) 20-25 July 2008; and
- the Pacific Islands Forum Fisheries Agency (FFA) 31 July 6 September 2008.
The Report
The report is provided in two parts:

Part One: A review of the GEF IW indicators framework and its application to the OFMP.

Part Two: A Baseline Study of the Oceanic Fisheries of WCPFO.
Outcomes and benefits
The anticipated outcomes and benefits of this study are:
·
identificationofasetofindicatorsfortheOFMProjectusingtheGEFIWapproachtoindicators;and
·
abaselinestudy,includingassessmentofprojectindicatorsprovidingabasisforassessingprogressby
the OFM Project against a set of indicators.
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PART 1
A review of the GEF IW indicators framework
and its application to the OFMP
1.
Introduction
Effective monitoring and evaluation (ME) is an essential part of project management and is a requirement
of most, if not all agencies that implement development projects in the Pacific. While at one level ME is
conceptually simple, the range of approaches adopted across different agencies, and within agencies for
differing categories of project, is wide-ranging and complex.
Central to all ME processes are indicators which are used to assess performance towards stated objectives,
outcomes or targets, usually from some agreed baseline level at the commencement of the project activity.
Since reporting for the OFMP deals incorporates both UNDP and GEF requirements, the work undertaken
by the consultant was, by agreement, expanded to give some consideration to the baseline and reporting
requirements associated with UNDP as the implementing agency, as well as the GEF.
The aim of this section of the report is to look at the basis for ME strategies in IW projects by drawing on various
GEF and UNDP papers, review the current ME requirements for the OFMP and make some suggestions that
will inform the identification of a set of indicators for the OFM Project, using the GEF IW approach to indicators.
2.
GEF International Waters Operational Strategy
The Oceanic Fisheries Management (OFMP) ME framework and associated indicators is considered in the
context of the appropriate GEF Focal Area (International Waters IW) and the Operational Programme (0P)
in place at the time of commencement of the project. These provide the planning framework for the design,
implementation and coordination of the GEF IW projects to achieve particular global environmental benefits.
GEF advice on logframes and indicators has been frequently IW specific.
At the time of inception and commencement, the OFMP fell primarily under OP9, Integrated Land and Water
Multiple Focal Area, Small Island Developing State (SIDS) Component. The following issues contained in the
OP9 Guidance Document2 are of significance:
·
partnershipsbetweenrepresentativeregionalorganisationsandthecapacityandinstitution-building
necessary for each island state to more comprehensively address environmental problems;
·
stocksoffishbeingdepletedbyforeignfishingfleetsthatcanbeaddressedthroughtheGEFinthe
context of altering sectoral activities on each island state to meet sustainable development goals; and
·
theimportanceofstakeholderinvolvementandtheparticipationofdifferentsectoralministriesineach
recipient country.
There are also elements of OP8 (Waterbody-based Operation Programme), contained in the OFMP, particularly
in relation to large marine ecosystems, although OP8 deals with `damaged and seriously threatened
waterbodies and the most immediate transboundary threats to their ecosystems'.3 It is unlikely, by most
measures, that the WCPO would be considered to be in a damaged or seriously threatened state at the time
of the commencement of the OFMP.
2
See the GEF website http://www.gefweb.org/Operational_Policies/Operational_Programs/OP_9
3
Operational Policies in International Waters. http://gefweb.org/Projects/Focal_Areas/iw/iw_ops.html.
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& Performance Indicators for the Pacific Islands Oceanic Fisheries Management Project (OFMP)

The OFMP now falls under the 2007 2010 International Waters Focal Area Strategy and strategic programming
for GEF-4. In the new IW strategy, the OPs have been replaced with four Strategic Programmes (SPs). The most
relevant SP for the OFMP is `Restoring and sustaining coastal and marine fish stocks and associated biological
diversity'. The objectives and the relevant SP are provided below (Table 1).
Table 1: Long term objectives and strategic programs for International Waters in GEF-4
Long-term Objectives
Strategic Programs for GEF-4
(relevant to OFMP)
1: To foster international, multi-state cooperation on priority
Restoring and sustaining coastal and marine fish stocks
transboundary water concerns
and associated biological diversity
2: To catalyse transboundary action addressing water concerns
3.
Implementing GEF IW Projects
GEF partners with three implementing agencies (IAs) which manage GEF projects on the ground. These are: i)
the United Nations Development Programme (UNDP) ii) the United Nations Environment Programme (UNEP),
and iii) the World Bank. UNDP is the IA for the OFMP.
Both GEF and UNDP have reporting requirements, which, at times, result in some confusion and duplication,
particularly in relation to the plethora of associated terms and definitions. The two organisations are also
interested in measuring project progress and outcomes in different ways, in line with their various mandates
and priorities.
This section of the study was originally intended to focus on the GEF approach to ME, including performance
indicators. However, given that a baseline study is to be done, it seems advantageous to give some
consideration to the more `mechanistic' implementation indicators used by UNDP. In this context, some
consideration is given to indicators of relevance to UNDP and project outputs.
4. Monitoring and Evaluation Approaches
4.1
The Logical Framework Approach (LFA)
The LFA has been adopted by all GEF projects since July 1997, following a decision by the GEF Council. Various
forms of logframe form the core of the ME strategy for the OFMP. UNDP and GEF provide further guidance on
adjustment to the LFA & the appropriate indicators with which to monitor progress of outputs & activities and
how they link to measurement of project outcomes/results and impacts from time to time.
Logframes were first used by the US to improve planning by making objectives and activities clearer and
better aligned, clarify management responsibilities and to develop clear evaluation measures and targets. It
was originally a `standardising' process for making decisions on and documenting projects and their progress
against stated goals and objectives. Over time, the LFA has become more analytical and has been adapted to
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suit the needs of specific organisations and funding/implementation bodies, including GEF and UNDP.
4.2
Performance Measures
Figure 1 below shows, in a generic sense, the relationship between a target, a baseline and a performance
indicator. Performance indicators (or measures) should provide a simple and reliable basis for assessing change,
performance or achievement towards objectives. They should reduce data and information on a particular
phenomenon to its simplest form while
retaining their essential meaning (DSE
2000).
Target
l
FIGURE 1: Relationship between
ve
Le
performance indicators, baselines &
Indicator
targets
Performance indicators/measures are
Indicator
Progress at time
commonly required at each level of
of review (R1)
Baseline
project hierarchy (outputs, outcomes,
objectives and goals).
Note that the GEF requires only project
outcomes (not outputs or activities) and
Time
TR1
their associated indicators, which are to be
reported in the GEF International Waters
Results Template4.
Indicators are generally used according to the following process:
·
establishingabaselinelevelforeachindictor at the commencement of the project;
·
establishingatargetfor each indicator relating to project outputs, outcomes and objectives: and
·
reportingagainsttheindicators through the life of the project (Annual Performance Report (APR)/
Project Implementation Review (PIR) Project Performance Results (PPR), annual and mid-term reports).
The term `indicator' seems to be used differently between the APR and the Process indicators section of the
PPR. The indicators associated with the APR, and of primary interest to UNDP, are more of the type outlined
in Figure 1 and as described above. The GEF PRR reporting framework uses a different approach, based on
Process, Stress Reduction and Environmental/Waters Resources Status indicators.
See Section 5.2 below for further discussion of IW indicators.
The UNDP APR/PIR uses indicators of a more standard form and requires the use of baselines, targets and
estimates of progress.
4
GEF 2006
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5. Monitoring and Evaluation for the OFMP
Section 3 of the OFMP project document refers to monitoring and evaluation requirements. It states that
UNDP and GEF procedures will be followed by the project team, and points to two separate LFA matrices.
5.1
Annex B indicators
The UNDP-focused LFA (Annex B of the project document) takes a more traditional approach to
performance and impact indicators by:
·
describinghowprojectgoalsfeedintoobjectives;and
·
describinghowprojectactivities/outputs5 feed up into outcomes.
Both have descriptions of objectively viable indicators, means of verification and critical assumptions and
risks, an example of which is provided in Table 2 below:
Table 2: Annex B Logframe extract
Summary
Objectively
Means of verification
Critical assumptions
verifiable indicators
and Risks
COMPONENT OUTCOME:
Substantial, relevant
Commission Reports, especially
Commission membership
Improved quality,
and reliable information
from the Scientific Committee
prepared to accept
compatibility and availability collected and shared
show that the Commission
scientific findings and
of scientific information and
between stakeholders
has access to, and is using,
statistical evidence in
knowledge on the oceanic
with respect to
on-going reliable statistics and
formulating what may be
transboundary fish stocks
transboundary oceanic
scientific advice/evidence by
difficult policy decisions
and related ecosystem
fish stocks and related
end of project to formulate
on management of the
aspects of the WTP warm
ecosystem aspects,
and amend policy on oceanic
fisheries, and difficult
pool LME, etc
(particularly for
fisheries management etc
management proposals
seamounts). etc
for the ecosystems. etc
1.1 Fishery Monitoring, Coordination and Enhancement
A template for national
Database and associated
Project documentation shows
integrated monitoring
software developed.
software and training to
__
programmes and provision
Reporting modules
implement regional template
of data to the Commission
available for Commission
made available to all PacSIDS by
data.
end of 3rd year.
National monitoring
National monitoring
Commission compliance
National commitment
systems based on the
systems, including port
reports show all PacSIDS
sufficiently strong to
regional template for
sampling and observer
meeting Commission standards
ensure allocation of staff
integrated monitoring,
programmes in place.
for provision of monitoring
customised to meet
All PacSIDS reporting
data within 2 years of the
national needs
regularly to Commission
standards being adopted by the
Commission.
These indicators were used in the OFP Annual Review, and will presumably be carried over into subsequent
annual reviews of the project.
5
The OFMP logframe appears to mix activities, outputs and outcomes under the various components and sub-components. For instance,
`Training of national monitoring staff....' is an activity, while `A regional monitoring coordination capacity' is an output and `National oceanic fisheries
status reports prepared collaboratively with national scientific staff' seems to be an outcome.
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5.2
GEF/IW Indicators
The GEF-based PPR indicator framework uses three types of indicator as laid out in Annex L of the project
document (see Table 3 for an extract). These are:
·
Process outcomes and indicators which are related to the establishment of regional or national
frameworks/conditions for improving transboundary environmental/water resources quality. As such
GEF are explicit that baselines are not required, and the indicators simply reflect establishment of
various institutions and agreements and their operation, rather than the downstream effects on the
aquatic resources/waterbodies that are measured by Stress Reduction and Environmental indicators.
·
Stress Reduction outcomes (which infer a level of reduction, e.g. fewer fishing vessels) for which
measureable indicators and baselines are required.
·
Environmental/WaterResourcesStatus outcomes and indicators, where indicators tend to be of
the annual `snapshot' type (e.g. stock assessments/status of stocks, level of bycatch, fishing mortality,
fisheries profitability/rent); measurable indicators and again, baselines are required.
These three forms of indicators were developed by GEF in response to the requirement for an ME framework
that acknowledges step-by-step progress towards the adoption of joint management regimes, country based
reforms and the priority investments that are necessary to support, in the OFMP case, the conservation and
management of marine resources in the WCPO.
Table 3: Annex L GEF Indicators extract
Outline of the Structure of Monitoring and Evaluation Indicators
Outcomes
Process Indicators
Stress Reduction
Environmental
Indicators
Status
Indicators
Component 1 Outcomes
Improved quality, compatibility
Establishment of Scientific
Measures of target stock
None provided for
and availability of scientific
Committee and subsidiary
status in relation to agreed
this outcome.
information and knowledge on
bodies including bodies for
management reference points;
the oceanic transboundary fish
statistics and Ecosystem/
measures of status of ecosystem
stocks and related ecosystem
Bycatch work;
including trophic status and
aspects of the WTP warm pool
binding agreement on
status of key non-target
LME, with a particular focus on
protocols for fisheries data
species; provision of scientific
the ecology of seamounts in
collection and provision,
advice to the Commission
relation to pelagic fisheries and
including catch and effort
including information and
the impacts of fishing upon them
logs, and port and onboard
recommendations on TACs and
sampling;
other management measures
This information being used by
establishment of Commission
from the Scientific Committee
the Commission and SIDS to
data management structure
to the Commission: measures
adopt and apply measures for the and, databases
of the impact of environmental
conservation and management
appointment of science staff
variability on target species
of transboundary oceanic fishery
and/or contracting of experts
abundance and distribution; etc.
resources and protection of the
for the provision of scientific
WTP LME. etc
services; etc
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ThisapproachtoMEisconsideredhighlyappropriateforIWprojects,giventheneedtoreflectthetimeframes
necessary to detect change in large waterbodies following management action, particularly at the ecosystem
level. In many instances, meaningful reporting against final outcomes of GEF projects will not be achieved until
well after the completion of the projects. By monitoring and reporting against these indicators during GEF's
annual project implementation review (PIR), project progress is measured. The ultimate achievement of the
indicators would enable an objective assessment of the GEF intervention. In this sense it is important to have
indicators that are capable of representing progress from a baseline level, through project implementation
and eventually to reach targets and achieve outcomes.
GEF expects each GEF international waters project to have its own discrete set of indicators and that these
will be developed by participating countries, the project executing and implementing agencies and the
broad range of stakeholders in each project area (Duda 2002). At the Program level, however there is also an
expectation that a system of program performance indicators will be developed, with a degree of uniformity
which can then be both aggregated and compared across all relevant projects (GEF 2003). This approach
is represented in the PPR template which provides `standard' examples of process, stress reduction and
environmental outcomes and indicators.
It is intended that indicators should be used for the full life of the project and many, especially in the case of
environmental indicators, to stay in use beyond the timeframe of GEF funded interventions.
5.3
Annual Reporting
There are currently two main reporting lines required: the PIR/APR and the PPR. To some extent there is
duplication, but both have distinct roles in the ME for the OFMP.
The 2008 IW reporting template incorporates two reports:
i
The UNDP-based Annual Project Report (APR) and Project Implementation Report (PIR) which
are combined into a single UNDP /GEF report. This report focuses on project implementation, through
activities, objectives and to the extent that is possible, outcomes.
ii
The Annual Project Performance Results (PPR) provided to the GEF and which focuses on higher
level outputs in an IW context, using comparable indicators across IW projects, and focusing on
incremental improvement.
These reports are intended to provide the required information for the donors and countries to assess the
progress of the OFMP. There are also annual evaluations in years 2, 3 and 4 of projects.
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5.3.1 The APR/PIR
a) APR Section 4 - Progress towards achieving project objectives. Section 4 of the 2008 APR/PIR report
uses a logframe approach to meet this requirement. The logframe is of the form shown in Table 4:
Table 4: APR/PIR Reporting Template
Project Objective &
Description of Indicator
Baseline
Target
Level at 30
Outcomes
Level
Level
June 2008
Objective:
1.
2.
3.
4.
Outcome 1:
5.
6.
7.
8.
Outcome 2:
9. etc
The OFMP Annex B was not prepared in this way and baselines and targets were not specified in the
Project Document on advice from the GEF/UNDP expert who assisted with the Project Document (ProDoc)
preparation. Apparently no issue was raised when the ProDoc was reviewed by the Scientific and Technical
Advisor Panel (STAP). The Project Coordination Unit (PCU) took the information in the ProDoc LFA, the details
of which were fitted to the APR table on progress towards objectives, and then added baselines, targets and
progress towards the target to date. The two overarching objectives of the project used in the above are taken
directly from the Annex B logframe6, i.e.
i
Information and Knowledge; and
ii
Governance.
The two high level Component outcomes in the Annex B logframe above are then broken down into three
project outcomes and reported against. Sub-component outcomes are covered under the section headed
`Progress in Project implementation' (see next section).
The format of the logframe under Section 4 of the 2008 PIR/APR report is in accordance with the UNDP APR/
PIR requirements and includes baseline and target levels.
The following changes to the current PIR/APR Section 4 report are recommended:
·
clarifytheindicatorsandremovereferencestooutputsandoutcomes;and
·
addadditionalindicators,assuggestedasaresultofthebaselinestudy.
Using the current Section 4 of the 2008 annual report as a basis, Attachment 2 provides a set of suggested
indicators and baselines for Section 4 reporting under the PIR/APR.
6
GEF projects usually only have one overarching objective
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Theindicatorsandbaselinesformuchoftheaboveare,ofnecessityregional.Manyoftheincountry
activities,especiallythoserelatingtothedeliveryofnationalassistanceinPacificSIDsasidentifiedinthe
2007annualreview,arebestreportedonthroughcomparativetablesofthesortusedinpreviousGEF
Baselinestudies.Thiswouldbeusefulforbothtrackingprojectprogress,aswellasreportingthrough
FFC and other regional fora to FFA member countries. It would also highlight areas where the targeting
supportisneeded,especiallytosmallFFAmembersandintheareaofcapacitybuilding,referredtointhe
mid-termreview.ThesamereviewindicatedthatatraininginventoryespeciallyinOFMisrequired,
underscoring the lack of baseline information in this area and a means to measure progress.
b) APR Section 5 - Progress in Project Implementation. Section 5 of the 2008 APR/PIR report relates to
project implementation in terms of outputs achieved, and is based on the sub-component outcomes
and outputs from the Project Document. Under each key output, activities are listed, again generally in
accordance with the Project Document (Table 5).
Table 5: Extract from Section 5 APR/PIR Report
Project Outcomes
Key Outputs
Fisheries Monitoring Coordination and Enhancement.
1. A template for national integrated monitoring programmes etc
Activity 1,2,3 etc
OUTCOME: Integrated and economically sustainable
national monitoring programmes in place including
2. National monitoring systems etc
catch and effort etc
Activity 1,2,3 etc
3. etc
This approach does not:
·
provide indicators as per the logframe in the pro doc;
·
have baseline status or targets; or
·
report against indicators as laid out in the Annex B.
Subsequent clarification provided by UNDP/GEF indicates that it is not necessary or appropriate to relate
project activities to baselines and targets, as activities are normally revisited and adjusted each year before
the annual work plan is approved by the Regional Steering Committee (RSC). Also, it is considered important
thattheprojectmaintainssufficientflexibilitytoadapttonewdevelopmentsandchangingcircumstances,
which should happen at activity level. UNDP uses Section 5 of the PIR/APR is to see if the project is on track
with implementation of activities under each project outcome/ component.
If a project was to undertake a wide range of activities and deliver a large number of outputs without achieving
its objectives and expected outcomes, then the information in Section 5 could be used to identify necessary
changes to the project strategy.
Restricting performance measurement to component level rather than sub-component outcomes as originally
suggested in the original Annex B logframe makes the reporting process simpler.
There are no suggested changes to the current PIR/APR Section 5.
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5.3.2 GEF Project Performance Results Report
The separate GEF annual PPR report template uses the GEF Process, Stress Reduction and Environmental
indicators, and considers outcomes and indicators. These are arranged by Project type (Foundational/Capacity
Building, SAP implementation etc), and allow comparison between IW projects within the same Operational
Programme.
The GEF Guidelines are very specific about what is to be considered under the outcomes section of the
template. The outcomes should describe the intended change in development conditions between the
completion of outputs and the achievement of impact and include key results (GEF 2006).
The original indicators laid out in Annex L of the OFMP ProDoc have been modified heavily in the current PRR,
noting that many are somewhat ambitious and are not easily measurable or available.
The template provided in May 2008 by UNDP/GEF requires that:
·
theGEFIWProjectreportsdeliveroneormoreofthethreetypesofGEFIWResults/Outcomesand
associated indicators;
·
whereavailable,baseline(pre-intervention)datashouldbeusedforStressreductionandEnvironmental
indicators;
·
reportsshouldcovercumulativeprojectoutcomesrealisedasofthePIRreportingperiod;and
·
responsestotherequired(specifiedintemplate)Outcomes/Indicators,withtheadditionofanyothers
considered appropriate
In addition, it has been clarified that the rating for likelihood of project achievement is for the Process indicator
alone, i.e. GEF only requires a rating of the Outcomes that the project has supported and impacted, not the
Catalytic outcomes, which in many cases may have manifested with or without the GEF intervention.
Most of the current indicators in the PPR are not indicators in the usual sense and are more akin to outputs
andprojectsub-componentoutcomes.ThisformofreportingisassumedacceptabletoGEF/UNDPand
iscomplementedbythereportinginsection4oftheAPR/PIR,whichincludesinformationonindicators,
baselines,targetsandcurrentlevelsofperformanceagainstprojectobjectivesandoutcomes.
As of 2008, the indicators are presented in a different colour, to enable progress by years to be monitored.
The Guidance Information for the Annual Project Performance Results Template (GEF 2006) requires that
projects report against certain core Process (5) and Stress Reduction (1) Indicators. The requirement for the
Process Indicators has been fulfilled under the current (2008) report, although the Stress Reduction outcome
(Pilot/demo projects demonstrate stress reduction measures on priority concerns) is not reported against since
there are no pilot or demonstration projects associated with the OFMP. The same GEF guidance information
requires that the contribution of GEF projects towards the Millennium Development Goals and World Summit
on Sustainable Development Plan of Implementation be reported. To date this has not occurred.
i) Process Outcomes and Indicators
For the OFMP, Process indicators characterise the completion of institutional process at both regional and
national levels that will result in i) joint actions to reduce environmental stress on transboundary oceanic
fisheries resources and ii) the protection of biodiversity in the WCP LME. These indicators should assist in the
tracking of domestic and regional institutional, policy, legislative, and regulatory reforms necessary to bring
about change (GEF 2002). In addition and as projects develop, national Process indicators, such as counties
enacting legal reforms of instituting regulatory programmes, tend to become more important.
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Given the length of time that is generally required before attributable changes can be detected in the
transboundary water Environment, Process indicators are likely to be the most important indicator of success
of an initial GEF International waters intervention (GEF 2002).
The indicators listed in the Guidance information (Table 6) are references to examples of appropriate
documentation which would provide an indication of the progress the project is making towards achieving
the Process Outcomes.
The current reporting for the OFMP goes beyond naming the documentation and includes details on the
nature of the process developments.
Table 6: Extract from the Process Outcomes and Indicators Results template
Process OUTCOMES
Process INDICATORS
Project
Rating
Catalytic
Project
Effective national inter-ministry
Documentation of functioning national inter-
coordination
ministry committees
Stakeholder involvement in SAP
Stakeholder involvement plan, progress
implementation
reports
Adoption of national and regional legal,
New policy. Legislative, etc. documents
policy and institutional reforms that address
priority transboundary concerns etc
ii) Stress Reduction Outcomes and Indicators
While process indicators relate to the needed institutional and other reforms of programmes. Stress reduction
indictors represent documentation that on-the-ground actions have occurred. It is noted that they are usually
measurable and quantifiable.
The 2006 PPR Template Guidance document (GEF 2006) uses the examples shown in Table 7 for Stress
Reduction Outcomes and Indicators
Table 7: Extract from the Stress Reduction Outcomes and Indicators Results template
Outcome
Indicator(s)
Reduced fisheries by-catch of non-target species
Policies/regulations on improved fishing gear and methods
enforced (% using gear, % compliance, % reduction in by-catch)
Reduced harvest of fish from overfished stocks etc
Year on year change in annual harvest (mt); Proportion of fisheries
under controlled access (%)
What is not clear, particularly for the Stress Reduction and Environmental Outcomes, is the reason for the lack
of targets for indicators.
Forboththeexampleoutcomesabove,thelackofatargetwouldseemtoindicatethatjustaboutany
positive incremental change in the indicator is acceptable. This makes the assessment of the level of
progresstowardsmeetinganoutcome(which,usingthislogicshouldhaveanassociatedtargetlevel)at
agivenpointoftimesomewhatdifficult.However,thisapproachappearsacceptabletoGEF.
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iii) Environmental Status Outcomes and Indicators
The time necessary to implement stress reduction measures and then estimate detectable and attributable
changes is likely to be beyond the life of many GEF IW projects. Following GEF guidelines, these indicators
should demonstrate improvements in the status of oceanic fisheries resources and the protection of
biodiversity in the WTP LME.
Establishing indicators and targets in relation to environmental status is no easy task, and in the case of the
WCPFC, a number of these (e.g. reference points for target species/acceptable by-catch mortality rates/catch
levels) have yet to be set.
The 2006 PPR Template Guidance document (GEF 2006) uses the following examples (Table 8) for
Environmental/Water Resources (and Socioeconomic) Status Outcomes and Indicators.
Table 8: Extract from the Environmental Outcomes and Indicators Results template
Outcome
Indicator(s)
Recovery of depleted fishery species
Year on year change in population/biomass of target
species (#, mt)
Recovery of aquatic species previously impacted by introduced
Biomass or population of affected species (mt, #);
species
biomass or population of introduced species (mt, #)
Increased fisheries profitability from sustainable fisheries
Year on year change in fisheries profitability (%) or net
applying best practices
profit ($)
The suggested way of dealing with indicators in relation to performance against the key regionally
developed management measures in the WCPO is to:
i
adopt the outcomes of Commission Conservation and Management Measures (CMMs) as targets
(e.g.purseseineeffortat2004levelsoranaverageof2001-2004);
ii
developanappropriateindicator(e.g.purseseineeffortindays);and
iii
measure progress against the indicator (reporting the % reduction annually in the PPR).
In summary, and as directed under the TORs for this review, the PPR requires revision. For the most part, the
process indicators seem well-constructed and comprehensive. Further stress reduction and Environmental/
Water Resources (and Socioeconomic) Status Outcomes and Indicators are required. Where possible, and in
accordance with GEF requirements, baselines for indicators should be included. The use of targets for stress
reduction and Environmental/Water Resources (and Socioeconomic) Status indicators should be investigated.
It is proposed by GEF that in the longer term, country-agreed outcome and indicator frameworks should be
adopted and tracked by the responsible joint institutions in the post GEF period.
Using the current (2008) Annual Report as a basis, Attachment 3 provides a set of suggested indicators and
baselines for Section III of the PRR.
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A Baseline study of the oceanic fisheries of
PART 2
WCPFO
1.
Introduction
1.1
Overview of the OFMP
Following an extensive project development phase funded under a GEF PDF-B grant, a second SAP (SAP II)
project was approved by the GEF in May 2005 - the Pacific Islands Oceanic Fisheries Management Project
(OFMP). The OFMP commenced implementation in May 2005. The project has two goals:
i
global environmental benefits by enhanced conservation and management of transboundary oceanic
fishery resources in the Pacific Islands region and the protection of the biodiversity of the Western
Tropical Pacific Warm Pool Large Marine Ecosystem; and
ii
enhanced contribution to Pacific SIDS sustainable development from improved management of
transboundary oceanic fishery resources and from the conservation of oceanic marine biodiversity
generally.
The OFMP has two operational objectives7 and associated technical components, which address the two
major deficiencies in management that were identified by the IW Pacific Islands SAP as the ultimate root cause
underlying the concerns about, and threats to, International Waters in the region. They are:
i
The Information and Knowledge objective to improve understanding of the transboundary oceanic fish
resources and related features of the Western and Central Pacific Warm Pool Large Marine Ecosystem.
This objective will be addressed by the Scientific Assessment and Monitoring Enhancement Component
of the OFMP which is aimed at providing improved scientific information and knowledge on the oceanic
transboundary fish stocks and related ecosystem aspects of the Western Tropical Pacific Warm Pool Large
Marine Ecosystem (WTP LME) and at strengthening the national capacities of Pacific SIDS in these areas.
ii
The Governance objective to create new regional institutional arrangements and reform, realign and
strengthen national arrangements for conservation and management of transboundary oceanic fishery
resources.
This objective will be addressed by the Law, Policy and Institutional Reform, Realignment and Strengthening
Component of the OFMP which is aimed at assisting Pacific SIDS as they participate in the earliest stages of
the work of the new WCPF Commission and at the same time reform, realign and strengthen their national
laws, policies, institutions and programmes relating to management of transboundary oceanic fisheries and
protection of marine biodiversity.
There is also a Coordination, Participation and Information Services Component; aimed at effective
project management, complemented by mechanisms to increase participation and raise awareness of the
conservation and management of oceanic resources and the oceanic environment.
7
Most GEF projects have a single objective
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1.2
The Baseline Study
This study was commissioned by FFA in collaboration with SPC. The Study reviews the situation of the oceanic
fisheries resources and associated fisheries in around mid 2005 and the status of:
a.
measures in place at national, sub-regional and regional level for the conservation and management of
the oceanic fish stocks of the WCPO and the protection of the WTP LME from fisheries impacts; and
b.
the status of the fisheries, the target stocks and the ecosystem including trophic status and status of key
non-target species.
In addition to the references provided, much of the information for the report was gathered directly from
discussions and contributions from the staff of the FFA Secretariat and the SPC.
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2.
Biology and Status of Key Tuna Stocks
This section considers the general biology and the current status of the four key tuna species targeted by the
industrial fishery, namely skipjack, yellowfin, bigeye and albacore tuna.
Figure 8. below shows the areas referred to in this paper as the WCPO and the Western and Central Pacific
Commission Area or WCP-CA.
Figure 8. The western and central Pacific Ocean (WCPO),
the eastern Pacific Ocean (EPO) and the WCPFC Convention Area (WCPCA in dashed lines).
2.1
General biology
The tuna fisheries of the WCPO are based on four key species of tuna skipjack, yellowfin, bigeye and albacore.
The most productive area for tuna lies in the equatorial zone (10oN 10oS) where around 80% of all tuna
landed in 2004 from the WCPO were caught (SPC data).
Skipjack and small yellowfin and bigeye tuna school (frequently together) on the ocean surface and are
commonly found in the tropical and subtropical waters of the WCPO. Schooling behaviour makes these fish
vulnerable to surface fishing methods, the most significant being purse seine8 and to a much lesser extent, pole
and line. Larger yellowfin and bigeye are generally found in deeper water, where they are more widespread
and are caught using longlines9. Some larger yellowfin (2-3 years) are also caught in free-swimming10 schools.
8
Purse seines consist of a wall of net that is used to surround schooling tuna and is then closed off by a wire to form a purse, holding up to
more than 100 tonnes in a single set of the gear. Pole and line vessels catch surface fish from schools one by one, using a pole and lure.
9
An extensive method of fishing using a mainline frequently over 100 kms in length, from which baited hooks are suspended at regular
intervals. The line and hooks are suspended from the surface by floats, which are also attached to the mainline.
10
Purse seines are usually set around the following: i) natural floating objects (logs and floating debris), ii) specifically deployed objects called
fish aggregating devices or FADs, which can be anchored or free floating, or iii) free-swimming fish in schools that are not associated with an object. i)
and ii) are sometimes known as associated sets. For reasons that are not well understood, tuna tend to aggregate around floating objects and fishing
on these tends to increase the effectiveness of purse seines as well as catches of small bigeye.
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In contrast to skipjack and yellowfin tuna, albacore concentrate in temperate areas where food is abundant.
Small albacore are particularly common at the ocean surface where different water masses converge, while
larger albacore are found in deeper waters (around the thermocline) and are caught on longlines.
Yellowfin and skipjack tuna spawn year round within 10 degrees of the equator and in waters in higher
latitudes when the water is warm enough (>23-24oC). Bigeye tuna spawn to slightly higher latitudes but the
duration of the spawning season is not known.
Tropical tunas are very productive and are generally much faster growing than their temperate counterparts
(including albacore and southern bluefin tuna). A two year old skipjack is around 5 - 6 kg in weight and 65cm
in length, while a two year old yellowfin can weigh close to 30 kg, with a length of 115 - 120 cm. Skipjack are
sexually mature at age of one year or less, while yellowfin achieve maturity in probably less than two years.
Bigeye is the longest lived, slowest maturing (about three years) and largest of the tropical tunas, reaching a
maximum length of over 200 cm. It is therefore less resilient to fishing than skipjack or yellowfin tuna. Albacore,
as may be expected in colder water habitats are slower growing and longer lived, taking around 10 years to
reach 20 kg in weight.
The biology (especially feeding habits, behaviour and mobility) of the key tuna species has an overriding
influenceonthedistributionandtypeoffishingeffortinWCPOoceanicfishery.Theclimaticandoceanographic
effects associated with the El Niño/La Niña (or ENSO11) effects are known to have a particularly profound effect
on the fishery. In this sense, an increased understanding of the biology and dynamics of the WCPO tunas
within the context of the warm pool large marine ecosystem (LME) of the WCPO, is essential to achieving long
term sustainability and optimal economic yields from the fishery (see Lehodey, 2001).
Sections 2.2 to 2.6 below provide an overview of the status of stocks of the four key tuna species and additional
information concerning bycatch.
2.2
Status of key stocks and impacts of fishing

2.2.1 Skipjack
Skipjack tuna is the dominant species in the WCPO tuna catch, accounting for almost two-thirds of the target
tuna species catch over the last decade. Skipjack tuna catches in the WCPO have more than doubled in the
1980s and have continued to increase at a slower rate since. The WCPO catch in 2004 was the highest on
record at 1.41 million tonnes, being driven by the purse seine fishery which accounts for more than 85% of
the skipjack catch.
Catches of skipjack tuna (and associated small bigeye and yellowfin tuna) show considerable interannual
variationandarestronglyinfluencedbyENSOeffects.ThetrendinCPUE(catchperuniteffort12 , expressed
asmetrictonnesoftunacaughtperday)forthepurseseinefleethasbeenincreasingsince1980,relatedto
increased abundance and/or increases in fishing effort and strategy (proportion of FAD fishing).
Other than a shift to larger size classes in the Indonesian/Philippine fisheries due to a change from pole and
line to purse seine, the overall size of and age structure of skipjack tuna taken in the purse seine fishery has not
changed significantly, indicating that there has been no significant change in the size or age structure of the
skipjack tuna population that could be attributed to fishing13.
11
El Nino / Southern Oscillation.
12
Catch taken by a given unit of effort (e.g. a fishing day) is a reasonable proxy for abundance i.e. as a stock becomes less abundant, then
less catch is taken for the same level of fishing effort.
13
As fisheries become heavily exploited the average size of fish caught often declines. Monitoring of fish size over time can potentially provide
one of a number of possible indicators of the impact of fishing.
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An integrated length-based age- and spatially structured model known as MULTIFAN- CL is now routinely
applied to the tuna stock assessment in the WCPO. A number of alternative model options, considering
various assumptions, including estimates of catchability and the spawning stock/recruitment relations, are
conducted.
Interpretations of the stock assessment indicate that there is little biological concern for skipjack, although
previous bio-economic studies have suggested that economic overfishing is probably occurring and improved
economic yields might be possible by reducing purse seine effort (Bertignac, 2000). It is also likely that there is
some economic overfishing on a localised basis.
The overall conclusions drawn below are comparable for the range of models investigated by OFP, and
presented in the 2005 Overview and Status of Stocks (Langley, Williams and Hampton 2005) and the 2004
stock assessment report presented to the 1st Meeting of the Scientific Committee of the Western and Central
Pacific Fisheries Commission (Langley et al 2005).
·
averageannualmortalityrates14 while remaining relatively low have increased steadily over time and
were approximately 0.24 in 2004 for juvenile and adult skipjack tuna;
·
recruitment15 is highly variable, with an overall increase in the level of recruitment during the model
period16 , and is generally higher following El Nino events;
·
populationbiomasstrends are driven by recruitment, as expected in a short-lived species such as
skipjack tuna. Recent total biomass levels of skipjack tuna are above long-term average levels; and
·
theimpactofthefishery on the stock is estimated to be low throughout the model period is and in
recent years it is estimated that biomass was reduced by approximately 15% of the level it would
have attained in the absence of fishing (Figure 9). Fishery impacts are generally higher (around 0.25%)
in the western equatorial region, where most of the skipjack is taken, using purse seines.
Baseline status of skipjack tuna: The results of the MULTIFAN-CL analysis are generally
consistent with the results of the fishery indicators and previous tag-based assessments
that is that the fisheries have had little measurable impact on the stock of skipjack tuna,
as shown in Figure 2. Fishing as at mid 2004 was within fishing mortality and biomass
(MSY) reference points.
14
Annual mortality rate is the proportion of the population (as measured at the beginning of the year) that dies during the year. Total
mortality is divided into two components, those that die naturally (e.g. by predation) or through fishing activity (e.g. being captured in purse seines).
15
Recruitment refers to the addition of tuna to the total stock.
16
1970 2005.
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10000
8000
6000
tal biomass (1000s mt)
To
4000
2000
0
1975
1975
1975
1975
1975
1975
2005
Year
Figure 9. The estimated impact of fishing on WCPO skipjack tuna biomass. The lower biomass trajectory
(darker line) represents the model estimates of total biomass. The upper trajectory is the estimated biomass
that would have occurred in the absence of fishing, assuming that recruitment was unaffected by fishing.
(Source: SPC)
2.2.2 Yellowfin
Unlike skipjack tuna, yellowfin tuna are targeted both by surface fishing methods, principally using purse
seines, as well as deeper-set longlines. As with skipjack tuna, the WCPO yellowfin tuna stock is considered
tobedistinctfromthatoftheEPO,withcatchesstronglyinfluencedbyENSOconditions.Since1997,the
yellowfin tuna catch in the WCPO has varied between 380,000 and 470,000 tonnes.
The east-west distribution of yellowfin tuna and purse seine CPUE (which accounts for around 50-55% of the
yellowfincatch)isstronglyinfluencedbyENSOevents,whichappeartoaffectthevulnerabilityofyellowfin
tuna to different methods of purse seining17 (associated vs. non-associated sets).
The interpretation of distant-water longline CPUE is complex due to changes in fishing patterns and targeting18.
Most of the longline-caught yellowfin is taken in the western equatorial region, where the standardised CPUE
has declined steadily since the 1950s to around one third of the initial CPUE. There is considerable variation in
CPUE from other regions, with most displaying strong declines.
Yellowfin tuna are most heavily impacted by purse seine fishing and the fishing that occurs in the Philippines
and Indonesia (Figure 10).
17
For example, oceanographic influences can result in a change in depth of the thermocline and the depth at which the fish are found,
which in turn can increase or reduce the effectiveness of purse seines, which are depth-limited.
18
To allow for different methods of longline fishing, and specifically those targeting deeper-swimming bigeye tuna, nominal CPUE informa-
tion is adjusted using different statistical techniques. For example, deeper-set lines tend to catch more bigeye and less yellowfin tuna, lowering the CPUE
for yellowfin.
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Figure 10. The estimated impact of each fishery on the yellowfin tuna biomass in the WCPO.
Impact is expressed as the proportional reduction in biomass attributed to fishing.
The same integrated, length-based, age-structured model, MULTIFAN-CL used for skipjack (and albacore) tuna
has been applied to yellowfin stock assessment. The key conclusions below are taken from the 2005 Overview
and Status of Stocks (Langley, Williams and Hampton 2005) and the 2004 stock assessment report presented
to the 1st Meeting of the Scientific Committee of the Western and Central Pacific Fisheries Commission
(Hampton et al 2005):
·
averageannualfishingmortality rates increased continuously from 1970 until recent years, with
juvenile fishing mortality rates increasing sharply during the 1990s - a recent and poorly estimated
slight decrease in adult fishing mortality of large yellowfin has been suggested;
·
recruitment estimates display considerable variation high in the initial model period (1950-1960),
low between the mid 1960s and mid 1970s and relatively high thereafter, with some evidence of
decline in the last few years;
·
biomass estimates are comparable with those for recruitment, with an initial decline, a plateau
around 1980-1990 and steady decline from 1990 onwards. and biomass has been trending
downwards since that time current biomass estimates are however estimated to be around 35-40%
of those at the beginning of the time series (1962); and
·
theimpactoffishing has strongly increased over time. In the early 1990's the biomass is estimated
to have been reduced by about 20% compared with the level it would have been in the absence of
fishing. Fishing is estimated to have reduced the overall stock biomass by about 50% in recent years
(see Figure 11). Fishing impacts vary considerably between regions, and is high in tropical regions
(about 70%) compared with subtropical regions.
Baseline status of yellowfin tuna: The biomass of yellowfin has steadily declined since
1990 and the fishing mortality rate in mid 2005 exceeds the F 19 reference point and
msy
overfishing is occurring. The stock (total biomass) is not yet in an overfished state.20

19
That is, the current level of fishing mortality (F) greater than that required for the stock to produce maximum sustainable yield (MSY) or
FCURRENT > FFMSY
20
That is, the current biomass (B) is greater than the Biomass that would produce MSY, i.e. BCURRENT > BMSY
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3000
2500
2000
1500
tal biomass (1000s mt)
1000
To
500
0
1950
1960
1970
1980
1990
2000
Year
Figure 11. The estimated impact of fishing on yellowfin tuna biomass. The lower biomass trajectory
(darker line) represents the model estimates of total biomass. The upper trajectory is the estimated biomass
that would have occurred in the absence of fishing, assuming that recruitment was unaffected by fishing.
2.2.3 Bigeye
As with yellowfin, bigeye tuna is taken both by surface (purse seine and pole and line) and longline gears.
The major longline fishery for bigeye tuna is in the EPO, east of 150o W. Since 1980, the longline catch of
bigeye tuna in the WCPO has varied between about 40,000 and 98,000t (tonnes), with the record high catches
(88-98,000t) being taken in the three years 2002-2004.
Since about 1994, there has been a rapid increase in purse-seine catches of juvenile bigeye tuna, first in the
eastern Pacific Ocean (EPO) and since 1996, to a lesser extent, in the WCPO. In the WCPO, purse-seine catches
of bigeye tuna are estimated to have been less than 20,000 tonnes per year up to 1996. In 1997, the catch
increased to 35,000 t, primarily as a result of increased use of fish aggregation devices (FADs). High purse
seine catches were also recorded in 1999 (38,000t) and 2000 (33,000t). The purse seine catch of bigeye in
2004 was 29, 368t.
Standardised estimates of effective bigeye tuna effort (i.e. hooks set at depths preferred by bigeye) show
that there is a long-term declining trend in longline CPUE in all regions of the WCPO. There are considerable
differences in CPUE declines between regions.
Bigeye tuna are most heavily impacted by longline fishing (Figure 12).
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Figure 12. The estimated impact of each fishery on the bigeye tuna biomass in the WCPO.
Impact is expressed as the proportional reduction in biomass attributed to fishing.
A six-region MULTIFAN-CL assessment is used to explore a range of alternative model options, for bigeye for
the WCPO.
The overall conclusions drawn below are comparable for the range of models investigated by OFP, and
presented in the 2005 Overview and Status of Stocks (Langley, Williams and Hampton 2005) and the 2004
stock assessment report presented to the 1st Meeting of the Scientific Committee of the Western and Central
Pacific Fisheries Commission (Hampton et al 2005):
·
averageannualfishingmortalityrates for both juvenile (<100cm) and adult bigeye tuna in the WCPO
increased gradually from 1950 to 1990 and then increased rapidly due to maintainace of longline
catches in the face of a decline in adult biomass, and increased catches of juvenile bigeye from purse
seine associated sets and the Philippines and Indonesia surface fisheries;
·
estimatesofannualrecruitment for bigeye have been fairly constant from the mid 1960s to the early
1990s since 1990, bigeye recruitment has been well above the long term average, driven by the
trends in the two equatorial regions of the WCPO21;
·
Thetotalbigeyebiomass is estimated to have declined by about 60% in the 1950s and 1960s mainly
due to recruitment declines. Since then, total biomass is estimated to have remained relatively stable
with increased fishing mortality being countered by increasing annual recruitment; and
·
Theimpactoffishing on the total biomass has increased over time as catches and fishing morality
have increased. The current level of catch is having a large impact in the biomass level (Figure 13),
especially in the equatorial region, where the biomass has been reduced by 70-80%.
21
Bigeye recruitment estimates are considered to be sensitive to estimated and assumed levels of catch of juvenile bigeye from the purse
seine and Philippines/Indonesia fisheries, future work is required to refine estimates.
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1200
1000
800
600
tal biomass (1000s mt)
400
To
200
0
1950
1960
1970
1980
1990
2000
Year
Figure 13. The estimated impact of fishing on bigeye tuna biomass in the WCPO. The lower biomass
trajectory (darker line) represents the model estimates of total biomass in each area. The upper trajectory is
the estimated biomass that would have occurred in the absence of fishing, assuming that recruitment was
unaffected by fishing.
Baseline status of bigeye tuna. The assessment in mid 2005 indicates that the bigeye
stock is not in an overfished state, although overfishing is occurring, which unless
addressed, will result in an overfished stock. An additional reduction in fishing mortality
will be required if future recruitment levels return to the long term average. The spatial
nature of the stock shows that greater pressure is being exerted in equatorial regions
and that management effort should be concentrated there.
2.2.4 South Pacific Albacore
The most significant fishing method for albacore tuna is longline, with a minor seasonal troll (surface) fishery.
Prior to 2000 albacore catches in the WCPO were between 25-40,000 mt (metric tonnes) per annum. Since
2000 there has been a considerable expansion in Pacific Island-based fishing effort on albacore, with historically
high catches being taken between 2001-2004 (55-65,000mt).
AlbacoreCPUEfromtheTaiwaneselonglinefleethasbeenusedasafisheryindicator.CPUEforthisfleetinall
areas has declined, by about 50% between the late 1960s-early 1970s and recent years. This has been partly
caused by longliners in the northeast of the fishery switching effort to bigeye and yellowfin.
CatchratesinthePacificIslanddomesticlonglinefleethavebeenrelativelylowinanumberofcountries
in recent years (2003-2004). This is believed to have been driven by changes in oceanographic conditions.
Figure 14. shows the differential impact of the longline fishery on that portion of the albacore population
that is vulnerable to longline fishing. Langley (2006) notes that at a regional level, increases in fishing effort in
the Pacific island country tuna domestic longline fisheries will result in declines in CPUE due to a decline in
exploitable biomass, an impact that will be exacerbated during periods of adverse environmental conditions.
Fiji and French Polynesia are two countries where CPUE declines have been attributed to high levels of
localised fishing effort.
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The impact of domestic longline fishing through the region is considered to be greater than the impact of
increasesintheleveloffishingeffortbythedistant-waterfleetinthesouth-easternareaofthefishery.
The assessment for South Pacific albacore is based on MULTIFAN-CL. The following observations are taken
from the 2005 Overview and Status of Stocks (Langley, Williams and Hampton 2005) and the 2004 stock
assessment report presented to the 1st Meeting of the Scientific Committee of the Western and Central
Pacific Fisheries Commission (Langley et al 2005):
·
averageannualfishingmortalityrates for adult and, particularly, juvenile (<100cm) albacore tuna has
remained low throughout the history of the fishery, although there is a marginally higher mortality
rate for the component of the adult stock vulnerable to longline fishing22;
·
recruitment has been highly variable since the start of the time series (1950s) and has been relatively
low after the early 1980s;
·
biomass estimate trends in adult biomass are consistent with recruitment trends and have declined
since the early 1980s; and
·
theimpactofthefishery on the South Pacific albacore stock has been small, but increasing in recent
years to around a 15 percentage reduction in biomass due to fishing (Figure 15.). The impact on the
juvenile part of the stock is negligible (around 1%) while the impact of fishing on the stock vulnerable
to longlines is much higher at around 30%
Baseline status of albacore tuna. The current level of exploitation of albacore from a
biological perspective is very low, and the fishery remains well within fishing mortality
and biomass reference points. The age-specific catch of the longline fishery has resulted
in significant impacts on that part of the stock which is vulnerable (larger adults).
0.30
Longline
Adult
Juvenile
0.25
ct
0.20
y impa
0.15
F
isher
0.10
0.05
0.00
1950
1960
1970
1980
1990
2000
Year
Figure 14. The estimated fishery impact on juvenile and adult biomass of South Pacific albacore and
the component of the stock vulnerable to the longline fishery.
22
Albacore tuna mature (become adults) at around 5 - 6 years old and become vulnerable to (are able to be caught by) tuna longlines at
more than 7 years of age. The proportion of the population >7 years old is relatively small, and, as shown above has been significantly reduced by
longline fishing.
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)
5000
4000
3000
Biomass (mt* 1000s
2000
1000
0
1950
1960
1970
1980
1990
2000
Year
Figure 15. Estimated annual total biomass (thousand mt) of South Pacific albacore.
The shaded area indicates the approximate 95% confidence intervals.
Baseline level summary for target species. The status of target species in the WCPO
are relatively (in comparison with other tuna RFMOs) well understood, with full stock
assessments in place for all species. As at mid 2005, the pressure created by expanding
fishing effort on bigeye and yellowfin tuna requires management action, and some
preliminary recommendations have been made. Skipjack stocks remain healthy and
underexploited, while albacore will require management action focused on economic
(catch rates and input costs) rather than biological considerations.
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of
Refined

nd
ave a
rface
tional
of
fishing
e
ng

s, noting
of
lso

stocks
ed levels
riority
vels of

and

on
fisheries.

impacts
Indonesian

recruitment

inform
and

tuna

better

to

skipjack
Philippines

on
the

dynamics
for

influences
required

operating

fleet

of
generally

environmental

on
data
Critical issues/ data and research requirements
Better
catch and effort data standardisation from the key fisheries. New conven
tagging experiments required to improve knowledge of recent levels of
mortality, estimates of natural mortality and movement behaviour. Further
research
movement.
Surface fisheries. Purse seine and Philippines/Indonesian fisheries have th
greatest impact. Longline fishing has the lowest impact. Improved catch a
length frequency data required from Philippines and Indonesian fisherie
some improvement in data from Philippines. Improved parameterisation
the model to explain inter-regional effects/impacts of fishing required. A
understanding
various management options (same applies to bigye tuna).
Longline fishing has the highest overall impact, but surface fisheries also h
high impact in tropical regions.
The model (recruitment inputs) is very sensitive to estimated and assum
of catch of juvenile bigeye from purse seining and Philippines/Indonesia su
fisheries. More information is required to reduce uncertainty this is a p
given than the biomass estimates have assumed larger-than average le
recruitment since 1990.
Refinement of stock assessment data required, including additional taggi
experiments - conventional and archival (latter to improve understanding
depth distribution/vulnerability to longlines).
was
,F=0 =
MSY
/B
/ BCURRENT
B CURRENT
CURRENT
indicate overfishing of
( B
Y
MS
/ B
CURRENT
The current level of longline catch
and B
indicates that overfishing of yellowfin is
.
MSY
/F
MSY
= 0.05).
/F
> 1)
MSY
MSY
F/
B/
F CURRENT
F CURRENT

and reference points indicate that recent fishing
MSY
CURRENT
(
B CURRENT
F/
Reference points/projections
Estimates of
skipjack is not occurring and the stock in not in an overfished state.
Current levels of fishing mortality sustainable, some potential for
increased yields.
Estimate of
now likely to be occurring while, the stock is not yet in an overfished
state
Further biomass decline is likely to occur at 2001_2003 levels of
fishing mortality which, unless addressed, will move the stock into
an overfished state.
F CURRENT mortality is near to or above the MSY level.
substantially >1 for most analyses. At current levels of exploitation,
biomass is forecast to drop below BMSY, if current high levels of
recruitment return to long term average levels.
The current assessment indicates that the current levels of
exploitation of the total biomass are low
0.91and F
is estimated to be having a measurable impact on the portion of
the stock vulnerable to longlines. While uncertain, the estimated
magnitude of this impact the current level of impact is about 30%
and has increased sharply in recent years.
Stock status at mid 2005
Stock healthy, with exploitation
modest relative to the stock's
biological potential. Biomass
is currently around 85% of
unexploited levels.
Overfishing likely to be
occurring. Biomass is currently
37 - 41% of unexploited
levels. Stock not yet over
fished, Equatorial area stock
more heavily impacted, with
relatively low exploitation rates
in subtropical regions.
Over fishing is occurring, but
stock not yet in an overfished
state. Biomass is currently 35
- 51% of unexploited levels.
Equatorial area stock more
heavily impacted.
Overall stock is healthy with
current level of exploitation
low. Increase in impact of
longline fishing on longline-
available biomass has
increased sharply,
Table 9: Baseline stock status of key tuna species and associated issues
Species
Skipjack
Yellowfin
Bigeye
Albacore
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3
Ecosystem Considerations
In keeping with international developments in integrated fisheries management, the WCPF Convention has
identified ecosystem issues as a significant component of the management of tuna fisheries in the WCPO.
Clear responsibilities are laid out in the Convention which includes the need to take into account the impacts
of fishing on target stocks, non target species, species belonging to the same ecosystem, or dependent on or
associated with target stocks. There is also a requirement to protect biodiversity in the marine environment.
3.1
Impacts of fishing

3.1.1 Target species
The status of key target stocks (Skipjack, yellowfin, bigeye and albacore tuna) has already been dealt with in
Section 2.2 above.
3.1.2 Bycatch and by-product23 species
Although albacore, bigeye, skipjack and yellowfin tunas have dominated annual catches from the WCPO,
the fisheries also interact with, and capture, a large range of other species. Some non tuna taxa, such as
billfishes and sharks, are important components of the retained catches of industrialised fisheries in the region,
especially in the longline fisheries (Molony 2005). The fisheries also interact with a range of other species
with no commercial value or species with non-commercial values (e.g. turtles and birds). The region will be
required to deal effectively with bycatch as required under the WCPFC24, various FAO International Plans of
Action (IPOAs) and other international agreements.
Levels and species of bycatch vary with fishing method. Due to the relatively small numbers of some species
and high degree of catch variability it is difficult to provide accurate total bycatch estimates, or detect the
impact of tuna fishing on these species. The biology and population dynamics of nearly all bycatch species
are also poorly known25.
In the purse seine fishery the level of bycatch is less than 1% (by weight) of the total catch. Bycatch from
free-swimming sets are much lower on average (0.5%) than those from associated sets (0.9%). In addition to
bycatch, there is some discarding of target species, of up to 5.7% for associated sets, and less (1.2%) for free
sets (Lawson 1997). There are no dolphins taken in association with purse seining in the WCPO. The most
important bycatch species are the shark species group and rainbow runners. Others include mackerels, ocean
triggerfish, mahi mahi and marlin (blue and black).
Rates of bycatch in the longline fishery are considerably higher, at around 40% of the total catch. Much of
this is however retained bycatch (by-product), which has some commercial value. Seabird mortality due to
longlines is almost non-existent in the tropical WCPO compared with higher latitudes where problems have
been experienced with albatross and other vulnerable species. Less than 100 mortalities per year have been
recorded since 1998. Tuna fishing is considered to be a low risk to seabirds within the WCPO (Moloney 2005).
Sharks, billfish and turtles are key bycatch species taken by longlines. Sharks are relatively long-lived, have low
fecundity and a low natural mortality, making them particularly vulnerable to fishing pressure.
23
Bycatch species are considered to have no commercial value or are prohibited from landing and are discarded, while by-product species
have some commercial value and are retained.
24
At the inaugural meeting of the Western and Central Pacific Fisheries Commission (WCPFC), issues of non-target catches in the WCPFC
area were discussed and scientific advice on the mortality of non-target species, with an initial focus on seabirds, turtles and sharks, non-target catches
was requested.
25
Reviews of bycatch have been undertaken by Bailey et al, (1996) and Lawson, (1997 and 2001).
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Some bil fish (notably swordfish and blue marlin) are secondary and even primary target species in some areas.
In early 2000 the overal catch of bil fish in the WCPO was estimated to be in excess of 32,000 tonnes (SPC data).
Small numbers of turtles are taken on longlines, particularly in shallow sets for swordfish and near known
nesting areas. Given that most species of marine turtles are either threatened or endangered, longline
mortality of turtles is of concern. A baseline summary of the status of bycatch is provided in Table 10.
As a consequence of regional agreements and increasing activity by environmental non-governmental
organisations (ENGOs) the issue of bycatch in the WCPO has gained prominence and is being dealt with
on a number of fronts. While this section focuses on OFP activity, it should be noted that other steps are
being taken in the WCPO by agencies such as the National Marine Fisheries Services (NMFS) which is doing
turtle interaction training in Pacific Island countries for industry and observers, and the South Pacific Regional
Environment Programme (SPREP).
Since early 2000, OFP has improved its statistical database of by-catch data, primarily as a result of:
·
theactivitiesofobservers,particularlywithrespecttospeciesofinterestincludingsharksandturtles;
·
improveddatacollectionandqualityarisingfromtheaboveactivitiesoftheOFPFisheryMonitoring
Supervisor and national observer coordinators, including the development of a new `Species of
Special Interest' form; and
·
anewpage-per-daylogbookformwhichisnowbeingtrailed,whichaimstomakebycatchrecording
a daily activity.
Billfish continue to form a significant proportion of the non-target catch, although in most WCPO fisheries
of interest, these species are considered by-product and are of commercial value. Catch estimates are now
regularly produced and a stock assessment for blue marlin, showing that effort on the Pacific Ocean Blue
marlin stock is close to that required to produce MSY, was conducted in 2003. A preliminary stock assessment
for striped marlin was conducted in 2005, with a similar result. A number of billfish species are of interest to
the recreational fishing sector.
Of growing interest in Polynesian States is the potential for a broadbill fishery, as is currently occurring off
the east coast of Australia. With catch rates and fish size declining in the core area of the fishery, the south
west Pacific swordfish stock is considered to be in danger of becoming over fished, with the possibility that
overfishing is occurring. Experience with this species is that they are prone to local depletion, particularly of
the larger, more valuable size classes (Ward and Elscot, 2000).
Based on the use of individual based modelling (IBM) techniques a pilot model has been developed by SPC
staff to study the endangered species of turtle, the loggerhead (Caretta caretta). The model will be adapted
from an existing model for Pacific skipjack tuna. (Kirby et al, 2003).
Since 2000, considerable effort has been expended by OFP on ecosystem based modelling and research. This
modelling includes a number of important species of bycatch within the context of the overall tuna fishery
and the WTP Warm Pool LME, including shark and billfish as top predators. Stomach contents of bycatch have
been examined, as have those of bycatch predators.
At an industry level, the coastal fisheries programme (CFP) launched an awareness campaign in 2002 on
the bycatch issue in pelagic longlining. A wide range of information on the bycatch issue including posters,
stickers and laminated cards providing information on the steps to be taken to mitigate bycatch and to
promote the survival of turtles continue to be provided. Training materials for regional training institutions on
bycatch are under development by the SPC and will be available by the end of 2003. A species identification
guide for industry and observers is planned, and will include information on target species, fish bycatch,
sharks, marine mammals and turtles.
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Table 10: Baseline status of bycatch (and by-product) species, and associated critical issues/
requirements (from Malony 2005, 2005a)
Species
Overall status
Critical issues/requirements
All
Data on overall bycatch species limited;
Need for review of data currently held, including observer data,
observer reports have considerable
and provision of updated estimates of bycatch levels, using
information that is currently not utilized.
observer reports.
Billfish
Details of biology and ecology of all
Catches of billfishes by longline are dominated by blue marlin
six species of billfish are limited and
and swordfish, with lesser amounts of striped marlin.
stock assessments of billfishes from the
Recently, fisheries specifically targeting swordfish and striped
Pacific Ocean are rare. A MULTIFAN-CL
marlin have developed in several countries within the WCPF
assessment of the Pacific wide blue
Convention area. Sport fisheries also rely heavily on most
marlin stock indicated that the stock
billfish species.
was not overfished but was likely to be
Research/data collection needs include: Improved
approaching full exploitation.
understanding of the sustainability current harvest as a
Assessments for western Pacific swordfish
continuous incidental catch by the large, widely distributed
and northern and south western Pacific
longlinefleet;roleofbillfishinthepelagicecosystem;
striped marlin are underway, but
interaction with sport fisheries; and assessment of other species
assessments for other species are not
of billfish and the re-evaluation of the blue marlin assessment.
currently planned.
Need for better estimates of catches from data correspondents,
reporting on logsheets and by observers.
Sharks
Catches average approximately 500,000
While the rate of shark-finning and/or retention is considered
sharks per year.
to be relatively high throughout the region the precise
Sharks are often targeted/ retained and
level is uncertain. The increasing value of fins will continue
are dominated by blue sharks in the
to place pressure on stocks. Industrialised longline fisheries
longline fishery. While sharks represent
and dedicated fisheries have been established in some
the most significant bycatch species
EEZs in contrast with other bycatch species. Current data
group, formal stock assessments for
is inadequate for stock assessment or to assess impact of
species of sharks, other than blue sharks,
fishing. There is a need to generate of more robust estimates
in the Pacific Ocean are currently limited.
of mortality and stock status. This would be, assisted by an
The total catches of the three species of
increased level of observer coverage and increased rates of
shark taken by longline and listed by the
identification of sharks to species level. Information on the
International Union for the Conservation
condition and fate of sharks would also benefit the generation
of Nature (IUCN) as vulnerable, are `very
of more accurate estimates, especially for sharks captured
low'. Falling CPUE for some species and
within the purse-seine fishery.
baskets of species are of concern.
Turtles
All species of marine turtles are listed as
Current data on turtle interactions and mortalities are sparse
`endangered' or `critically endangered' by
due to poor longline observer coverage and are inadequate
the IUCN (www.redlist.org). The highest
for stock assessment or to assess impact of fishing. More than
estimated total catches taken in the
50% of all turtle records by observers were not identified to the
tropical shallow (<100m) longline fishery,
species level.
with the highest mortality rates occurring
Needtoextendmitigationstrategiestocommercialfleetand
for deeper set logline gear, probably
raise awareness of release techniques to decrease post-capture
due to drowning. There are relatively
mortality.
low purse seine mortalities, more than
Research/data collection needs include: more detailed analyses
70% of which were from associated sets.
of turtle-fishery interactions; dividing the longline and purse-
Most turtles caught by purse seines are
seine fisheries within the tropical regions of the WCPFO into
released alive.
fisheries east and west of 170ºE, in order to better estimate

turtle-fishery interactions; and increased species identification
rates by observers in all fisheries to permit a better assessment
of the impacts of fishing on turtles stocks.
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Species
Overall status
Critical issues/requirements
Seabirds
Catches of seabirds on longlines in the
Many resident and transient seabirds in the tropical Pacific are
tropical waters of the Pacific islands
listed as threatened by the IUCN (Watling 2002) and reducing
region are very rare in comparison
seabird-fishery interactions in the region may improve the
with temperate waters and the risk of
status of these bird stocks.
industrialised fishing to the sustainability
Research and data needs to include improved identification of
of bird populations in the WCPFO is
birds by observers. Improved reporting of condition and fate
considered low. The interaction of the
of captured seabirds would improve the understanding of the
industrialisedfleetswithbirdsbetween
interactions between birds and industrialised fisheries in the
15oN and 31oS is too low to generate
region.
reliable estimates of catches and
mortalities.
Mammals
Very few mammal interactions have been
Future, more detailed analyses of mammal-fishery interactions
reported by observers within the longline
are required. Division of the purse-seine fishery of the WCPFO
fisheries and the overall impact of
into at least two separate fisheries, with division between the
longline fisheries with marine mammals
two fisheries set at 180oE should be considered.
appears very low. Some interactions with
Better species identification of the few recorded interactions
whales in the western tropical Pacific as a
would permit a more thorough understanding of the impacts
result of purse seine sets being made on
of fishing on mammals stocks of the WCPFO.
tuna schools associated with whales and
interactions during FAD purse seine sets.
Other
Over 50 fish species are taken by longlines No known significant sustainability issues, however little
species
and purse seines, some of which are of
information exists on which to base such assumptions for
commercial value or of interest to the
most species. A better understanding of species composition
artisanal or recreational sectors.
through observer data collection is required and will be an
ongoing task.
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3.2
The Western Tropical Pacific Warm Pool LME

3.2.1 Physical environment
The Western Tropical Pacific (WTP) Warm Pool Large Marine Ecosystem (LME) is considered part of the larger
Pacific-wide tropical oceanic environment known as the cold tongue-warm pool system. This system consists
of a cold tongue of nutrient rich water generated by equatorial upwelling, and extends from the eastern to
central equatorial Pacific. The cold tongue eventually encounters a large pool of very warm water in the west
(theWTPWarmPoolLME).ProductivityintheWCPOislargelyinfluencedbytheupwellingintensityandzonal
extensionthatfluctuatesinrelationtotheinterannualvariabilitylinkedtotheElNiñoSouthernOscillation
(ENSO), and the more recently identified Pacific Decadal Oscillation (PDO). A correlation between ENSO and
PDOsignalsisevidentforthelast50years,althoughwhetherENSOfluctuationsareinfluencedby,orarethe
cause of, the PDO is still unclear.
3.2.2 Ecosystem dynamics
There is an increasing trend in fisheries management to develop ecological approaches that take into account
species interactions and underlying ecosystem dynamics. To assess the impact of fisheries and environmental
effects on the ecosystem requires a good understanding of the marine ecosystem.
At a physical level, ENSO events have a direct effect on the productivity of the ocean and tuna fishing
operations and there is an increased understanding of these effects. For example, during El Niño events, when
trade winds decline and the cold tongue retreats eastwards and warmer (less productive) waters extend to
the central Pacific, higher purse seine catches of skipjack are found in the eastern part of the WCPO. El Niño
conditions also result in a vertical change in the thermal structure of the ocean resulting in the rising and
vertical extension of yellowfin and bigeye temperature habitats, which in turn increase purse seine catch rates
of yellowfin and longline catch rates of bigeye.
Predation induces an important mortality in the ecosystem that is often higher than fishery mortality, at least
in the juvenile stages, and determining trophic interactions between species is a major step towards a better
understanding and modelling of ecosystem dynamics.
3.2.3 Trophic structure
To understand of the effect of environmental conditions (such as El Niño) and the impact of fisheries on the
different components of the ecosystem, it is necessary to acquire a better understanding of the functioning
of the ecosystem. Knowledge of the trophic structure, interaction between trophic levels and feedback of
thepelagicecosystem(i.e.whoiseatingwhointhefoodwebandhowinfluentialisthebiomassofaspecies
or trophic group upon others in the web) provides the information necessary to comprehend ecosystem
functioning.
A large sampling programme has been in place in the WCPO since 2001 to collect stomach and tissue samples
of pelagic predators to determine the trophic structure of the ecosystem through analyses of their diets. Diet
information of the main predators will be compiled into a diet matrix describing the prey-predator interactions.
It is planned to incorporate this information into an ecosystem model of the western and central Pacific using
the Ecopath with Ecosim software (http://www.ecopath.org/). This will allow the testing of different scenarios
of environmental forcing (ENSO effects) and impacts of fishing. A preliminary Ecopath/Ecosim model has
been developed for the three species of tropical tuna (Godinot and Allain 2003). The outputs of this model
are questionable due to a major weakness, being the uncertainty in the estimation of the data input values, as
biological factors and abundance, which can very strongly with area. A lack of data also restricted the inclusion
of many functional groups of species and these were either not included or were over exaggerated.
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3.2.4 Ecosystem monitoring
A spatial ecosystem and population dynamics model (SEAPODYM) has been developed (Lehodey 2004a,
2004b) to explore the underlying mechanisms by which the climate and environmental variability affect the
pelagic ecosystem and tuna populations. The model uses:
·
Aninputdatasetdescribingtheoceanicenvironmentwiththevariablestemperature,currentsand
oxygen concentration over three vertical layers. Primary production is integrated over all three layers.
From this input, the transfer in the food chain is simulated with six different kinds of forage (prey)
organisms living at different depths and having one of two vertical migration behaviours (migrating
or not, during the night to the upper layer);
·
Thepopulationsoftunaspecies,whichevolveaccordingtotheirownpreferencesfortemperature
and oxygen conditions and their ability to access these different prey components; and
·
Theobservedfishingeffort,appliedinspaceandtimeandthecatchpredictedfromthestateofthe
populations simulated by the model at the corresponding time and place of fishing. A comparison
of observed and predicted catch is applied to evaluate whether the model produces realistic
simulations.
A comparison of observed and predicted catch is applied to evaluate if the model produces realistic
simulations. Early runs of the model have been applied to skipjack and have provided encouraging results. The
model predicted large interannual variations in the recruitment, increasing during El Niño events (1972, 1982-
83, 1987, 1990) and decreasing during La Niña events (1988-89), as observed from the statistical estimates
(MULTIFAN-CL). An exceptional catch record of skipjack at the end of 1998 seems to support this mechanism.
Once the SEAPODYM model has been parameterised for an individual tuna species, the model can be applied
to investigate trends in abundance and spatial distribution of the species under different environmental
conditions.
The ultimate goal of this work is to provide ecosystem models with the capacity for testing different fishing
policies and environmental change scenarios to assist managers with identifying robust and reliable
management options that will achieve their fisheries management objectives.
3.3
Ecology of seamounts and associated effects of fishing
There are a large number of seamounts in the WTP LME. The impact of fishing on and around seamounts is a
major current global environmental concern, based primarily on the destructive effects of deep sea bottom
trawling on vulnerable, benthic species, many of which are endemic. These species include corals and sponges
and long-lived, slow-growing fish species.
There is currently no known deep sea bottom trawling in the WTP LME but the potential exists. Since tuna
fishing, by definition is a pelagic (carried out in the water column) activity which takes place high in the water
column removed from the seamounts, it is a lesser concern than trawling.
However, seamounts are known to aggregate pelagic species and are targeted using certain methods of
pelagic fishing (especially tuna longling). They are also known to support a mix of pelagic species that differs
considerably in species composition compared to the open ocean. As a result, some concerns exist about the
impact of pelagic fishing around seamounts. These include:
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·
thepossibilityofhigherproportionsofjuvenilefishincatches;
·
likelyhigherlevelsofcatchesofsomebycatchspeciesofspecialinterestsuchassharksandbillfish,and
including some species such as wahoo which are locally important for food security;
·
possiblyahighermortalityofturtles,seabirdsandmarinemammals;and
·
thepossiblesharingofpreybetweenpelagicanddemersalspeciesduetoverticalmigrationofsome
prey species.
The relationships between seamounts, pelagic fishing and the dynamics of tunas and exploitation generally
of pelagic species in the WTP LME are not well understood. Analysis of historical data and the collection of
additional data will be necessary to assess in a scientifically rigorous way if, and what, management measures
may be required.
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4.
WCPO Tuna Fisheries
This section will deal with tuna fisheries in the WCPF Commission Area (WCP-CA) (Figure 8)26. As Figures 16.
and 17. below show, the WCPO tuna fishery is dominated by skipjack tuna, which is primarily taken by purse
seining.
Annual total catches of the four main tuna species (skipjack, yellowfin, bigeye and albacore) in the WCPCA
increasedsteadilyduringthe1980sasthepurseseinefleetexpanded,remainedrelativelystableduringmost
of the 1990s, increased sharply in 1998 and has remained at this elevated level since (Figure 16. and Figure
17.). The provisional total WCPCA catch of tunas during 2004 was estimated at 2,021,773 mt, the highest
annual catch recorded (the previous record was in 1998 2,009,546 mt). During 2004, the purse seine fishery
accounted for an estimated 1,263,161 mt (62% of the total catchthe highest catch ever for this fishery), with
pole-and-line taking an estimated 297,515 mt (15%), the longline fishery an estimated 225,786 mt (11%), and
the remainder (11%) taken by troll gear and a variety of artisanal gears, mostly in eastern Indonesia and the
Philippines.
The WCPCA tuna catch (2,021,773 mt) for 2004 represented 78% of the total Pacific Ocean catch of 2,582,774
mt, and 51% of the global tuna catch (the provisional estimate for 2004 is just under 4,000,000 mt).
2,200,000
2,000,000
SKIPJACK
YELLOWFIN
1,800,000
BIGEYE
1,600,000
ALBACORE
1,400,000
1,200,000
1,000,000
800,000
Catch (mt) 600,000
400,000
200,000
0
1972
1976
1980
1984
1988
1992
1996
2000
2004
Year
Figure 16. Annual total catch, by species, in the WCPCA
26
This section draws heavily from Williams and Reid (2004).
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2,200,000
Purse Seine
2,000,000
Other
1,800,000
Pole and Line
1,600,000
Longline
1,400,000
1,200,000
1,000,000
800,000
Catch (mt) 600,000
400,000
200,000
0
1972
1976
1980
1984
1988
1992
1996
2000
2004
Figure 17. Annual total catch of skipjack, yellowfin, bigeye and albacore tuna,
by fishing method, in the WCP-CA.
4.1
Purse seine
The purse seine fishery is technology intensive and uses large highly mechanised and expensive vessels to
catch surface swimming, schooling tunas (skipjack and small yellowfin and bigye tuna) using surrounding
nets.
Since the early 1990s the purse seine fishery has accounted for around 55 60% of the WCPCA total catch
by volume, with annual catches in the range 790,000 1,260,000 mt. The majority of the WCPCA purse seine
catchistakenbythefourmaindistantwaterfishingnations(DWFN)fleetsJapan,Korea,Chinese-Taipei
and USA, which currently number around 120 vessels (Figure 18.), although there has been an increasing
contributionfromthegrowingnumberofPacificislandsfleets(60vesselsin2004),withthebalancefromthe
Philippinesandavarietyofotherfleets,includingseveralnewdistant-waterentrantsintothetropicalfishery
(e.g. China and New Zealand).
The WCPCA purse-seine fishery is essentially a skipjack fishery, unlike those of other ocean areas. Skipjack
regularly account for 70 75% of the purse seine catch, yellowfin 20 25% and with bigeye accounting for
only a small proportion. Yellowfin catches tend to be generally higher during El Niño years and lower during
La Niña years. Catches of juvenile bigeye by purse seine have been an issue given the status of the bigeye
resource, although in recent years, there has been a gradual decline in both the use of drifting FADs and
consequently, the catch of bigeye.
The provisional 2004 purse-seine catch of 1,263,161 mt was the highest on record and maintained a catch in
excess of 1,200,000 mt for the past three years. 84% of this catch was skipjack, 24% yellowfin and 2% bigeye.
Taiwan has been the highest producer in the tropical purse seine fishery since 1996 producing around 200,000
tonnesperannumforthelasttwoyears.CatchesbytheJapaneseandKoreanpurseseinefleetshavebeen
largely stable. The number of Pacific island domestic vessels continued to grow in 2004 and is now at its
highest level ever (Figure 18.). This category is made up of vessels fishing under the FSM Arrangement27 and
domestically-based purse seine vessels operating in PNG and Solomon Islands waters.
27
The FSM Arrangement fleet comprises vessels managed by the Pacific Island "Home Parties" of PNG (17 vessels), the Marshall Islands (6
vessels), FSM (6 vessels), Kiribati (1 vessel) and the Solomon Islands (2 vessels) which fish over a broad area of the tropical WCPCA.
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Othermajorfleetsare:
·
Thedistant-waterPhilippinefleet,whichoperatesalmostexclusivelyinPNGwaters,comprises11
vessels and accounted for close to 35,000 t. during 2004;
·
ThedomesticPhilippinepurse-seineandring-netfleetsoperateinPhilippineandnorthern
Indonesian waters, and continued to take in excess of 100,000 t;
·
Therecently-establishedNewZealand(4vesselsinthetropicalfishery)andChinese(6vessels)purse
seinefleets;and
·
theSpanishfleetwhichwasactiveintheeasternregionsofthetropicalWCPCAduring2004,witha
provisional catch estimate of around 5,517 mt.
Purse seine set types (either associated with drifting logs or fish aggregating devices (FADs) or unassociated
(free schools) vary with oceanographic (ENSO) changes. For the last 3 - 5 years to 2005, there has been an
increase in unassociatedsets,whichistypicalofElNinoyears,whennaturalfloatingobjects(i.e.logs)aremore
prevalentandtunaschoolsassociatedtofloatingobjectsappeartobemoreavailabletothepurseseinegear.
Differentfleetstendtohavedifferingfishingstrategies,withKoreanvesselsfavouringunassociatedsets.
Thereisverylimitedpublisheddataontheprofitabilityofthepurseseinefleetsandmosteconomicanalysis
is limited to price data. These prices, particularly for skipjack tuna, are highly volatile and are related to supply
factors. After reaching a peak of US$1,000 - 1,100 per tonne28 for skipjack in the late 1990s, prices collapsed
to below US600 between 2001 and 2002. Since then, prices have steadily increased to approach US$1,000
per tonne in 2005. Prices for yellow fin tuna for canning prices have tended to be less volatile, and have also
increased since lows around 2000 of US$800-900 per tonne29 to around US$1,250 in 2005.
250
Distant-water
200
s 150
essel
100
Number of v 50
0
1972 1974 1976 1978 1980 1982 1984 1986 1988 1990 1992 1994 1996 1998 2000 2002 2004
Figure18. Number of purse-seine vessels operating in the WCPCA. Domestic
(non-Pacific Is.) includes vessels based in Australia, Japan and New Zealand, but
not Philippine domestic vessels.
28
Bangkok monthly skipjack price (4-7.5lbs, c&f)
29
Bangkok monthly yellowfin price (20lbs and up, c&f)
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4.2 Longline
Longline fishing for tuna is less technically demanding and requires less capital than purse seining. Accordingly,
it is of major and increasing significance to Pacific island nations and territories. There are considerably fewer
barriers to entry to this fishery, the major constraint being the availability of air transport for the shipment of
highly valuable fresh sashimi-grade tuna.
The longline fishery continues to account for around 10 12% of the total WCPCA catch but rivals the much
larger purse seine catch in landed value. It provides the longest time series of catch estimates for the WCPCA,
with estimates available since the early 1950s (Lawson & Williams, 2005). The total number of vessels involved
inthefisheryhasfluctuatedbetween4,000and5,000formuchofthisperiod(Figure19.).
The fishery involves two main types of operation:
·
large(typically>250GRT)distant-water freezer vessels which undertake long voyages (months) and
operate over large areas of the region. These vessels may target either tropical (yellowfin, bigeye tuna)
or subtropical (albacore tuna) species.; and
·
smal er(typical y<100GRT)offshore vessels which are usual y domestically-based, with ice or chil ing
capacity, and serving fresh or air-freight sashimi markets. These vessels operate mostly in tropical areas.
Additionally, small vessels in Indonesia and Philippines (not included in Figure 19.) target yellowfin and bigeye
by handlining and small vertical longlines, usually around the numerous arrays of anchored FADs in these
waters. These fisheries have similar species composition as longliners operating in the same area.
Therehavebeensignificantchangesinfleetoperationsduringthepasttwodecades,including:
an increase in depth deployment of the longline gear to target higher-valued bigeye in preference to
yellowfin in the 1980s;
·
agradualincreaseinthenumberofPacificislandsdomesticvesselsduringthe1990s,especiallyin
Polynesian nations with albacore the main species;
·
entranceintothefisheryandsubsequentdeclineofthesmaller"offshore"sashimilonglinersofChinese-
Taipei and mainland-China, based in Micronesia; and
·
atrendtowardsflexibilityinspeciestargetinginsomefleets,notablythosewithultra-lowtemperature
freezing capacity, creating an ability to move between albacore and bigeye and yel owfin.
The WCPCA longline tuna catch steadily increased from the early years of the fishery (i.e. the early 1950s)
to 1980 (227,212 mt), but declined in the five years after this to 156,608 mt in 1984 (Figure 32.). Since 1984,
catches steadily increased over the next 15 years until the late 1990s, when catch levels were again similar to
1980.
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Figure 19. Longline vessels operating in the WCPCA.
4.3
Pole and Line
The pole and line fishery is of decreasing significance to the Pacific islands due to economic factors and
technological advances in the purse seine fishery. These advances have drastically reduced the costs of
production of the purse seine sector, which targets the same species (skipjack tuna).
There remains a low level of distant-water pole and line activity by Japanese vessels in the Pacific islands
region,withthebulkofthecatchbeingtakenbyJapaneseandIndonesiancoastalfleets.
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5.0 Management Issues
5.1
WCPF Convention and Commission
The Convention on the Conservation and Management of Highly Migratory Fish Stocks in the Western and
Central Pacific Ocean (WCPF Convention) was opened for signature in Honolulu on 5 September 2000 and
came into force on 19 June 2004. As at mid 2005, the WCPF Convention had been signed by 19 countries (12
PacSIDS) and ratified or acceded to by 18 countries (15 PacSIDs, including NZ on behalf of Tokelau) and the
European Union.
The WCPF Convention gives effect to the UN Fish Stocks Agreement in so far as the Western and Central
Pacific Ocean is concerned. The primary objective of the WCPF is to ensure, through effective management,
the long-term conservation and sustainable use of highly migratory fish stocks in the western and central
Pacific Ocean in accordance with the 1982 United Nations Convention on the Law of the Sea (LOSC) and
the 1995 UN Fish Stocks Agreement. For this purpose, the WCPF Convention establishes a Commission
for the Conservation and Management of Highly Migratory Fish Stocks in the Western and Central Pacific
Ocean to oversee the implementation of the obligations under the Convention and requires members of the
Commission to implement a number of conservation measures, both in zone and on the high seas.
The WCPF Convention imposes obligations on each member of the Commission to promptly implement the
provisions of the Convention and any conservation, management and other measures or matters which may
be agreed to from time to time. Beyond the specific requirements of the WCPF Convention, it is necessary for
members of the Commission to review their legislation to align their laws and policies more closely with the
Convention and the decisions of the WCPF Commission.
The inaugural meeting of the Commission was held in December 2004 and a number of decisions and
(non-binding) resolutions were made, with implementation issues for PacSIDs. Many of the procedures,
specifications and other actions agreed had been developed during the period of the preparatory conference
(Prepcon) phase and through its three working groups.
The key outcomes of the first Commission meeting were:
·
AdecisionrelatingtothebudgetoftheCommissionandrelatedmatters,includingascaleof
contribution by members;
·
AdoptionofaRulesofProcedurefortheCommission(andsubsidiarybodiesuntiltheydeveloptheir
own): and
·
AdoptionofaPrepconrecommendationtobasethattheheadquartersoftheCommissionin
Pohnpei, Federated States of Micronesia;
The establishment of a secretariat;
·
AdoptionofproceduresforaCommissionrecordoffishingvesselsandauthorizationstofish;
·
Adoptionofspecificationsforthemarkingandidentificationoffishingvessels;
·
AdoptionofproceduresforCooperatingNon-Members;
·
AdoptionofaresolutiononconservationandmanagementrelatingtoworkbytheScientific,and
Technical and Compliance Committees on estimates of sustainable catch levels, biomass projections
etc; advice on the effective implementation of possible conservation and management measures
including time/area closures and FAD measures; and
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·
AgreementtocarryovertheprovisionsofpreviousMHLCandPrepconresolutionscallingfor
measures including reasonable restraint in the expansion of fishing effort and capacity in the
convention area.
It is clear from the list above that in mid 2005 PacSIDs were under considerable pressure to ensure their
legislation and fisheries management and policy frameworks were in accordance with these decisions arising
from the first session of the WCPF Commission.
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6.
Scientific Assessment and Monitoring Arrangements
The key provider of oceanic fisheries assessment and monitoring services in the WCPO is the Oceanic Fisheries
Programme (OFP) based in Noumea, New Caledonia. The OFP is part of the Marine Resources Division of the
Secretariat of the Pacific Community (SPC). These services include fishery monitoring and data management,
ecosystem and biological research relevant to the fisheries, and stock assessment and evaluation of species-
and ecosystem-based management options.
The OFP will be responsible for delivery of Component 1 of the OFMP - Scientific Assessment and Monitoring
Enhancement.
These services are provided at both the national and regional levels.
The most important programme outputs are information (e.g., reports on the status of fisheries, stocks and
ecosystems), infrastructure (e.g., databases, monitoring programmes) and advice (e.g., regarding appropriate
levels of fishing).
·
Atthenational level, the OFP provides scientific support to national Tuna Management Plans (TMPs) in
Pacific island countries and territories (PICTs), primarily through support of information (including the
status of fisheries, stocks and ecosystems) national fishery monitoring and database systems, provision
of advice on appropriate levels of catch or effort, and associated national capacity building.
·
At the regional level, the OFP provides scientific services (data summaries and analyses, stock
assessments and management advice) to two key agencies:

- theForumFisheriesAgency(FFA) for its various regional tuna fisheries management

initiatives, including the US Tuna Treaty, the Palau Arrangement and coordination of FFA
inputs into the Western and Central Pacific Fisheries Commission (WCPFC); and

- the WCPFC in the areas of data management and stock assessment. Service provision
to both the FFA and WCPFC is governed by inter-organisational memorandum of

understanding.
The OFP has three research areas and their current research focus on oceanic fisheries resources and the
related environment are provided in the following sections. This division of activities is broadly in line with
the activities of the OFMP. At the end of each section key activities for the next 5 years relevant to the OFMP
are identified. The four provides baseline of national monitoring and stock assessment activities in OFMP
beneficiary countries.
6.1
Statistics and monitoring

6.1.1 Current status
A regional catch and effort database of industrial tuna fisheries has been established. Catch and effort data
is provided by two main sources from coastal states in the form of logsheets and in an aggregated form
fromflagstates.Table11.providesestimatesofthetotalcoverageoflogsheet,landing,portinspectionand
observer data.
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Table 11. Data coverage (% of total) for purse seine and longline fisheries in the WCPO as at mid
2005 (SPC data)
Gear Type
Logsheet
Landings
Port inspection
Observers
Purse seine
8.4
7.0
3.9
14.1
Longline
2.3
7.4
1.8
0.3
Problems have been experienced with gathering data on the substantial catches taken in the WCPO by non
FFA States outside this area, particularly from Indonesia and the Philippines and Vietnam. Other tuna fisheries
data includes annual catch estimates, unloadings data, port sampling data and observer data. Annual catch
estimatesbyfleet,catchandeffortdatagroupedbytime-areafromDWFNsandotherstatisticalinformation
are provided on a regular basis via OFP publications and on-line, including the Regional Tuna Bulletin and the
Tuna Fishery Yearbook.
Observer programmes provide a wide range of data for research purposes from most of the major industrial
fleetsoftheregion.Thisincludesdataforprimarytargetspecies,non-targetspecies(includingbycatch)and
length data. Coverage is uneven and while gradually increasing, is generally low, the exception bring the US
purseseinefleet,whichunderanFFA-runobserverprogrammehasachieveda20%coverageforthreeofthe
last4years.Coverageoftherestofthefleetisconsiderablylowerandisachievedbybothnationalandregional
(SPC) programmes. An observer programme operated under the South Pacific Regional Tuna Research and
Monitoring Programme (SPRTRAMP) between early 1995 and 2000, with OFP observers gathering baseline
datafrommostofthemajorindustrialfleetsoftheregion.TheOFPhasalsoplaysasignificantroleinassisting
member countries to establish national observer programmes, through the provision of observer training,
design of data collection forms, processing of observer data and data quality assessment.
Port sampling is conducted to collect data on the species composition and the length-frequency of the landed
catch. OFP continued to support the collection of biological data and/or the collection of landings data from
around 18 ports in the Pacific islands area of the WCP-CA, including ports in 8 FFA member countries. Support
for this work includes port sampler training, technical and financial assistance, data processing, provision of
forms and provision of sampling equipment such as calipers.
Fisheries database systems have been established in several countries. The OFP processes data received from
SPC members and, at the beginning of each quarter, returns the data to the SPC members for incorporation
into databases that are maintained on computers within each country or territory.
Data are disseminated through the publications mentioned above and authorised (by relevant countries/
other sources) releases of data to scientists outside the OFP. Public domain catch and effort data, grouped by
gear type, 5° squares and month, for all fishing nations combined are available on the SPC website.
SPC has developed and installed fishery databases on computers in the fisheries departments of FFA member
countries. The systems are customised according to the needs of the member country but typically allow the
production of data summaries and maps of fishing activity within their EEZ.
With FFA, OFP continues to assist FFA member countries to establish national observer programmes, through
the provision of observer training, design of data collection forms, processing of observer data and data quality
assessment. As the proposed regional observer programme to be established under new Commission (and
UNFSA), substantial strengthening of observer and port sampling programmes will occur.
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As at mid 2005, the ability of PacSIDs to fully met WCPFC-related reporting requirements in respect of annual
catch estimates, aggregate and operational catch/effort data and size data was limited by a general lack
of resources (human, computers and database systems) and capacity to (i) ensure that appropriate target
coverage in the data collection were achieved, (ii) process and manage their fishery data and (iii) produce
summary reports to forward to the WCPFC (i.e. meet their WCPFC data reporting obligations).
A basic text version of the Tuna Fisheries Management Database- TUFMAN, which will form the basis of data
collection, analysis and submission to the Commission was installed in Fiji Fisheries Division offices only, and
the reporting of 2004 annual catch estimates by PacSIDs to the WCPFC was in most cases well after the
deadline for the provision required by the WCPFC (30th April 2005). In a number of cases, assistance by SPC
was necessary/requested to complete the task. This situation was understood to be due to the lack of capacity
andresourcesinPacSIDstoundertaketheworkinpreparingestimatesfortheirfleets.
Attachment 4 provides an estimate of baseline status (mid 2005) for national monitoring activities in OFMP
beneficiary countries.
Key future activities related to the OFMP
·
Continuecoordinationofthecollectionandcompilationandoftunafisheriesdata,includingdataon/
from: annual catch estimates; catch and effort log sheets; aggregated catch and effort, unloadings, port
sampling, and observers.
·
Provide technical support to FFA (SPC) members for data collection, including the installation,
maintenance and updating of in-country Tuna Fishery Data Management Systems (TUFMAN) and the
Catch and Effort Query System (CES).
·
Improveobserverandnationalportsamplingcoverageandefficiencythroughtheprovisionoftraining
and advice to national observer programmes and the establishment and support of National Tuna Data
Coordinators (NTDCs).
·
Provide tools, develop standardized procedures and build capacity to improve the timeliness and
quality of tuna fisheries data provided to the Commission for regional stock assessments which are
fundamental to the conservation and management of the tuna resource in the western and central
Pacific Ocean.
·
Trainingofnationalmonitoringstaff,particularlymonitoringcoordinators,observersandportsamplers
through attachments to SPC and in-country training courses.
6.2. Tuna ecology and biology

6.2.1 Current research
The Tuna Biology and Ecology Section of the OFP undertakes analyses to understand the biological parameters
andtheenvironmentalprocessesthatinfluencetheproductivityoftunastocks,whichinturnarefundamental
for stock assessment. Biological investigations focus on tuna age and growth, tuna movement and behaviour,
diet and feeding behaviour as observed using conventional and electronic data archiving tags, and field
sampling and laboratory analyses. Mathematical models are developed to identify the major environmental
determinantsoftunafisheryproduction,includingimpactsofclimatefluctuation(ENSO,PDO,andglobal
warming), and to improve the prediction of tuna stock distribution, abundance and availability to fisheries.
Building on previous work with yel owfin and bigeye tuna, growth estimates based on otolith increment
counts combined with tagging data are being developed for other species (skipjack, bil fish, albacore, wahoo,
kawakawa). Growth estimates for these and a range of other species wil gradual y become available in the
future.
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The stock structure of yellowfin, skipjack and albacore tuna has been available from conventional tagging
experiments, leading to general acceptance of an east-west population structure for skipjack and hemispheric
structure for albacore in the Pacific. Much less information has been available for bigeye tuna, although a single
Pacific-wide stock is now assumed following a genetic study. In 2005 the need for a major (and repeatable)
conventional tuna tagging study was confirmed, and funds were being sought. Results of this work, if funded,
will provide better estimates of exploitation rates and population dynamics.
Analysis of the occurrence of non-target, associated and dependent species, more commonly known as
bycatch, in WCPO tuna fisheries is an ongoing function. Observer data has been the major source of such
information and has enabled the WCPO bycatch to be characterised and preliminary estimates of the catch
by species to be obtained. As discussed earlier, coverage rates are acceptable in the US purse seine fishery
(20%),arelowerintheTaiwanese,KoreanandJapanesepurseseinefleets(<4%)andarelessthan1%inthe
longline fishery.
There is growing interest at the international level to address marine exploitation issues from an ecosystem
perspective using SEPODYM and Ecopath with Ecosim (see also Sections 3.2.3 and 3.2.4 above).
SEPODYM has now been applied to skipjack, yellowfin and bigeye tuna, and captures important changes in
their population dynamics (including recruitment) which explain much of the time/space variability in catch
and CPUE. The ability to include multi-species interactions is considered an important enhancement to the
current single species stock assessments.
Ecopath provides a framework for the construction of mass-balance models of ecosystems based on estimates
of how abundant the resources are (biomasses), the productivity or mortality rates of the resources, how they
interact (diet compositions and food consumption rates), and how efficiently the resources are utilized in the
ecosystem. The Ecopath model includes 20 functional groups up the food chain, including detritus, plankton,
cephalopods, pelagic fish, small top predators and adult top predators.
Given the description of the ecosystem in Ecopath, Ecosim provides a tool to explore hypothesized changes in
production by means of dynamic simulations. Since the energy inputs and outputs of all model components
must balance, Ecopath will help translate the diet and stable-isotope data into estimates of trophic level for
the system components.
Simulations using the biodynamic models that are under development should allow exploration of the
impact of environmental changes such as ENSO, as well as fishery exploitation variations, on the different
components of the ecosystem.
A food web study of the western and central Pacific Ocean tuna ecosystem was completed by the first GEF
project and provides an initial characterization of the Western Pacific Warm Pool Large Marine Ecosystem. In
particular, trophic relationships among major components have been determined by conducting biological
sampling, and databases to support detailed ecosystem modelling in the future have been established. This
work is ongoing and supports work on the two biodynamic models described above.
Much of the OFP work on biology and ecology is integrated into wider regional projects including i) The
Pacific Fisheries Research Programme (PFRP) project: Trophic structure and tuna movement in the cold
tongue-warm pool pelagic ecosystem of the equatorial Pacific and i ) the Oceanic Fisheries and Climate
Change project (OFCCP). The OFCCP wil investigate the effect of climate change on the productivity and
distribution of oceanic tuna stocks and fisheries in the Pacific Ocean with the goal of predicting short- to
long-term changes and impacts related to climate variability and global warming.
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In addition to more `traditional' research areas (upper trophic levels of the pelagic ecosystem, food web
structure in pelagic ecosystems and modelling from ocean basin to individual scale) the OFCCP will also
consider socio-economical impacts. This area of work acknowledges that ENSO events have important
socio-economic impacts on tuna fishery and industry at the global scale that in turn may affect the tuna
populations (e.g., higher/lower catch) and the pelagic ecosystem (by-catch, interaction between species, top-
down effects). Using ecosystems models, it is hoped that various management options can be exploited that
accountforclimatechangeandspatialandtemporaldistributionoftargetspeciesandfleets.Eventuallythe
project could help to assess the vulnerability and impacts in a scenario of global warming, and to eventually
propose adaptations and/or mitigation measures for the future.
Key future activities related to the OFMP
·
Continuesamplingandcomparativeanalysisofstomachcontentfoundinpelagicspecies,including
the main bycatch species to inform trophic relationships.
·
Further development and refinement of the SEPODYM and ECOPATH/ECOSIM models, including
consideration of MPA (high seas closure) establishment.
·
ContinueworkoncollaborativeprojectsincludingthePFRP`TrophicStructure'project.
·
Exploreinteractionsbetweentunafisheriesandseamountecosystems.
·
Improveestimatesofbycatchbyreviewinguseofhistoricalandcontemporaryobserverdata.
·
Assesstheimpactsoftheglobalclimatechangeontunastocks(furtherdevelopmentoftheOceanic
Fisheries and Climate Change Project, OFCCP GLOBEC30).
6.3
Stock Assessment and modelling

6.3.1 Current research activity
Stock assessment of the major targeted tuna species and population modelling continue to be major
components of the OFP's work, in support of scientific advice on the status of the stocks that is provided
regularly at both national and regional levels. MULTIFAN-CL, a length-based, spatially-explicit, age-structured
model, has been under development at SPC since 1991 and was first used for albacore in the early 1990s.
This major step forward resulted in a modelling tool capable of providing a systematic stream of estimations
of the major parameters that are needed for modern fisheries management. These include fishing mortality;
relative and absolute (with less precision) stock size, size structure, effort trends, recruitment, impact of fishing
and catchability. Importantly, these estimates are provided within a spatial structure and with measures of
uncertainty for each parameter. The data files used in the MULTIFAN-CL model can be made available for
independent review or analysis by interested scientists.
Tuna movement is recognised as playing a major role in population dynamics and in determining the extent of
actual and potential interaction between fisheries. By using tagging data and information from the ecological
models, the simulation of skipjack populations and catch under climatological (average) conditions has been
achieved and comparison of CPUE estimated by the simulations with observed average CPUEs have been
very promising.
Estimating (and managing towards) some optimum level of catch or effort (including MEY concepts) is gaining
prominence. In collaboration with the University of Queensland and FFA information on the population
biology of major tuna species and been integrated with economic information to provide advice to FFA
member countries on optimal (from a bioeconomic point of view) levels of fishing effort. This work will be
extended through the incorporation of economic data into the ecosystem models.
30
The Ocean Fisheries and Climate Change Project (OFCCP), conducted as part of the Global Ecosystem Dynamics (GLOBEC) programme.
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National Fisheries Assessments (NFAs) are produced by the OFP to inform member countries of the status of
their tuna fisheries and the stocks that support them. Reports include sections on the biology of the major tuna
species,oceanographicinfluencesintheEEZ,reviewsofthefisheriesandanalysesofdata,assessmentofstocks
and management recommendations, where requested. In some cases, the reports have included analyses of
regional tuna tagging project and/or in-country tagging project data, enabling more quantitative assessments
and management advice. Scientific input has also been provided in the development of tuna management
plans. The baseline status of NFAs and related national assessments are included in Attachment 4.
The OFP's tagging databases consist of more than 300,000 releases and approximately 26,000 recoveries. This
large amount of data continues to be supplemented by long-term tag recoveries, some now nearly eight
years at liberty, and represents a valuable source of information for stock assessment and tuna research. A
large amount of historical Japanese tagging data is also being prepared for use in an integrated skipjack tuna
model.
Most fisheries administrations, and where they exist fisheries researchers, in PacSIDs have little in-depth
knowledge of stock assessment models, indicators and reference points. While it is unrealistic to plan or
support in-country tuna stock assessments, it is increasingly important that island nationals engaged in
managing fisheries have a sound understanding of, and an ability to interpret and question, the results of
stock assessments.
In 2005 the Standing Committee on Tuna and Billfish provided the key forum for the presentation (by OFP)
and discussion of stock assessments, the status of target resources and by catch and impacts of fishing and
environmental change.
Key future activities related to the OFMP
·
Continue predation of National Oceanic Fisheries Status Reports and support of National Tuna
Management Plans.
·
ContinuedevelopmentofMULTIFAN-CL,includinggraphicalinterfaces.
·
Undertakefiveand10yearprojectionsoftotalandspawningstockbiomassforbigeyeandyellowfin,
including incorporation of management options including area closures and gear (FAD) restrictions.
·
Developestimatesofmortalitiesofnon-targetspecieswithanemphasisonseabirds,turtlesandsharks.
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& Performance Indicators for the Pacific Islands Oceanic Fisheries Management Project (OFMP)

7. Fisheries Management, Including Fisheries law, Policy and

Compliance
Each sovereign FFA member is responsible for its own fisheries policies, laws and regulations as they relate to
the sustainable management of oceanic fisheries. The capacity of FFA members to develop and implement
of fisheries policy and fisheries management arrangements varies greatly and all rely, to a greater or lesser
extent, on services provided by the FFA.
These services fall into three major areas and have both a national and regional focus and include:
·
Theprovisionof,andsupportfor,variousforumsincludingtheForumFisheriesCommitteeandthe
Parties to the Nauru Agreement. These forums consider and cooperate to achieve common positions
and agreed initiatives to take forward at the Commission;
·
Capacitybuildingthrougharangeoftraininginitiativesincludingattachments,workshopsandstudy
visits to other RFMOs; and
·
Thedeliveryoftechnicaladvisoryservicesinareasincludingcompliance,legalservicesandfisheries
management.
The FFA is responsible for the delivery of Components 2 (Law, Policy and Institutional Reform Realignment
and Strengthening and 3 (Coordination, Participation and Information Services) of the OFMP.
Of particular note is the initiative by those FFA members who are parties to the Palau Arrangement on the
ManagementofthePurseSeineFishery, to develop a Vessel Day Scheme (VDS). The proposed scheme was in
the final stages of development prior to mid 2005. A memorandum of understanding to facilitate the adoption
of the scheme was opened for signature by the PNA ministers in 2005. The scheme will replace the current
vessel number limit under the Palau Arrangement and is expected to be launched at the annual meeting of
the members of the PNA in 2006. The scheme was acknowledged and approved by the WCPF Commission as
a management and conservation measure for the management of the purse seine fishery in its management
and conservation measures for bigeye and yellowfin tuna.
In recognition of the worldwide shift to incorporate more holistic forms of management for natural resources,
FFA has commenced a project to introduce an Ecosystem Approach to Fisheries Management (EAFM) as the
key approach to tuna fisheries management amongst FFA members. The general knowledge of the complex
marine ecosystem in this region is limited, and the ways in which tuna fisheries affect it is poorly understood,
and the EAFM approach is seen as a long-term undertaking for FFA member countries to reduce uncertainty
in the fisheries management decision making process for the sustainable developments of the regions tuna
resources. Links between this process and the current national fisheries management and development plans
are unclear.
7.1
Fisheries Legislation
Pacific SIDS have made substantial progress in implementing UNCLOS through both national and regional
( including the establishment of Regional and VMS registers and standardised data collection) initiatives. All
states have now ratified UNCLOS and implemented its requirements in their national laws.
With GEF and other assistance Pacific SIDS were at the forefront of the development of the WCPF Convention
text and the Preparatory Conference and as at mid 2005 had also contributed significantly to the development
of the first round of resolutions and measures at the Commission.
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As discussed earlier, The WCPF Convention imposes additional and substantial obligations on each member
of the Commission to implement the Convention provisions and any conservation, management and other
measures (CMMs) or matters which may be agreed to from time to time. Beyond the specific requirements
of the WCPF Convention, it is necessary for members of the Commission to review their legislation to align
their laws more closely with the principles of international fisheries agreements (including the UN Fish Stocks
Agreement and FAO Code of Conduct), the WCPF Convention and the decisions of the WCPF Commission.
Undertaking these actions should not be seen as simply meeting the requirements of the Commission; sound
national fisheries legislation is the cornerstone of effective fisheries management and the implementation of
tightercontrolsonnationalflagvesselsinhomewaters,otherEEZsandonthehighseas.
Legal reforms should also provide a statutory basis for fisheries management plans, including consultative
and transparent decision-making frameworks.
Pacific SIDs are faced with the substantial task of making revisions to national laws that go well beyond that
which has occurred to meet the requirements of UNCLOS. These revisions mark a major change in fisheries
management and governance and will need to give practical effect to the principles of biodiversity, EBFM and
the precautionary approach.
Attachment 5 provides a baseline of National legislation and policies relating to the WCPF Convention and
Commission.

Key future activities related to the OFMP
·
Identifying and assisting with meeting the obligations arising from the Convention text and the
decisions of the Commission.
·
Developing and running national and regional workshops on international fisheries law generally,
and regional fisheries instruments and the WCPFC legal framework specifically, including developing
proposals for legal arrangements to implement the Convention.
·
ProvidingnationalpolicyadviceontheimplementationoftheWCPFConvention.
·
AdvisingonnecessarylegislativechangesrequiredtoimplementtheConventionandthedecisionsof
the Commission.
7.2
Fisheries policy31
Fisheries and associated policy development is occurring at a range of levels relevant to Pacific SIDS. At a
global level, Agenda 21 and subsequent policy framework declarations32 have emphasised the importance
of marine resources to the sustainable development of SIDS and in so doing have recognised that much
fisheries development activity, especially on the high seas, has generally been non-sustainable. The need
to balance fisheries development and the generation of sustainable, improved returns from fisheries with
effective fisheries management, including under UN Fish Stock Agreement (e.g. the WCPF Convention) is a
central theme in this thread.
Also at the global level, a range of technical policy instruments have been agreed and are in the process of
being implanted in Pacific SIDS. These include the FAO Technical Guidelines for Responsible Fisheries and
national plans of action (NPOAs) on fishing capacity, sharks, seabirds and IUU fishing.
31
Includes fisheries management
32
E.g. The Barbados Plan of Action and the UN Millennium Declaration.
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In the region, Pacific SIDS have adopted a Pacific Islands Regional Ocean Policy which seeks to represent
"aregionalefforttoachieveresponsibleoceangovernance"andachieve"healthyoceanthatsustainsthe
livelihoods and aspirations of Pacific island communities" (CROP, 2004). The Policy's goal is to ensure the
future sustainable use of the ocean and its resources by both Pacific island communities and their external
partners. The use of partnerships is emphasised in this policy, both in terms of development and the political
and financial support to develop programmes and initiatives to support the efficient and sustainable use of
marine resources, including capacity building.
At the WCPF Commission, Pacific SIDS have the opportunity to develop and promote policy and management
initiatives that best meet their specific needs, and, while meeting conservation and management initiatives,
do not unduly restrict key development policy objectives.
The global and regional policy initiatives outlined above need to be oprationalised through national fisheries
policy that will be based more on gaining maximum benefits from current catches, rather than seeking to
substantially increase catch volumes. Much of this policy work will be done through legislative reform (see
previous section) and through national fisheries management plans and associated measures. Substantial
progress on these activities was initiated under previous GEF funding. Coordinating and, where appropriate,
harmonising these national approaches will be a major challenge.
The current fisheries policy scene is characterised by complexity and diversity, and the necessary improvements
outlined above will require considerable expertise and human capacity. Increasing the understanding and
capacity of the regions' policy makers, fisheries managers and decision makers in the area of sustainable
fisheries management is a fundamental need facing Pacific SIDS.

Key future activities related to the OFMP
·
Assistwiththecontinueddevelopmentoffisheriesmanagementplans,policiesandstrategies.
·
Developpreferred(byPacificSIDS)proposalsfortheCommission,includingthoseonconservationand
management measures.
·
Build fisheries policy-making capacity of nationals through a range of training initiatives including
workshops, short courses, seminars, emphasising the value of cross-agency cooperation (fisheries,
environment economic development etc).
7.3
National Fisheries Institutions
It has been long recognised that most Pacific island SIDS require institutional strengthening if they are going to
realise the promise and deal with the challenges offered by the sustainable development of oceanic fisheries
resources. Many fisheries administrations operate in silo-like conditions, with ineffective communications
and inputs from other government agencies and from non-governmental players, including environmental
NGOs and industry. Some fisheries administrations have moved to various improved governance models
that allow for more transparent, adaptive and responsible approaches, particularly in relation to private
sector development. Cost recovery and adequate resourcing of fisheries management agencies will also be
of growing significance as the requirements to report and demonstrate implementation of the Convention
and Commission measures increase. Some useful examples of arms-length (from Government) authority
models exist in the region (e.g. the National Fisheries Authority in Papua New Guinea) and others are like to
be developed in the future.
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Key future activities related to the OFMP
·
Developmentofnew,alternativeorimprovedmodelsoffisheriesadministrationtostrengthennational
oceanic fisheries management.
·
Establishment of improved consultative processes and exchange of knowledge/views with the
community and industry/environmental NGOs and other non-state stakeholders.
·
Capacitybuildingofnon-statestakeholderstoenablemoreeffectiveinputintofisheriesmanagement
decision making.
7.4
Fisheries Compliance
Fisheries compliance, encompassing monitoring, control and surveillance (MCS), remains a critical issue of
Pacific SIDS. Through FFA and PNA initiatives, considerable progress has been made in developing national
compliance programmes, particularly through the use of VMS, a regional register of fishing vessels and
coordinated compliance operations between FFA members using combined assets and third party (e.g.
Australian and New Zealand Royal Air Force Surveillance) assistance. While these initiatives are acknowledged,
most Pacific SIDS will require strengthened in-zone compliance capacity to adequately apply the more
rigorous conservation and management measures that will arise from Commission agreements and to ensure
that their own EEZs have sufficient safeguards against IUU fishing. As regulations on the high seas and in
neighbouring EEZs are increasingly applied effectively, the pressure on individual states' EEZ compliance
arrangements will increase as a result of displaced IUU fishing.
As MCS efforts are ramped up in an effort to reduce IUU, the significance of port state control and effective
dockside boarding and prosecution has been acknowledged and capacity building of nationals through a
series of workshops is planned.
High seas compliance remains an area of concern and was a key area targeted by the provisions of UN
Fish Stocks Agreement and the WCPF Convention. While FFA members are keen to ensure that high seas
compliance standards in the WCPO compatible in in-zone measures, there has been, and is likely to continue
to be, some resistance from major fishing nations. The Preparatory Conference developed a draft MCS scheme
for the Commission which will provide a platform for future negotiations, via proposals that will need to come
from, and be driven by, Pacific SIDS. These will include provisions relating to at sea and port inspections,
observers, transhipment controls, infringements and deterring non-contracting party IUU vessels.
Compliance training, particularly in the area of VMS systems and port inspection remain a key priority.
Attachment 6 provides baseline information on compliance issues relating to the WCPF Convention and
Commission

Key future activities related to the OFMP
·
IdentificationofConventionimplicationsandcompliancegaps.
·
Improvedregionalcoordination,buildingoncurrentNiueTreaty-basedinitiatives.
·
As with management/policy initiatives, the development of detailed compliance proposals for
discussion and prospective adoption at the Commission.
·
Compliancetraining.
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8.
Information Dissemination and Stakeholder Engagement
8.1
Information dissemination and awareness raising
The extent and level of complexity of oceanic fisheries management, including stock assessment, ecosystem,
legal and compliance considerations, has resulted in many thousands of pages of technical papers, many
of which are unintelligible to civil society and, frequently to government departments. While the WCPF
Commission has a comprehensive website, the publications listed are highly technical and are written for an
informed audience of fisheries specialists.
Many FFA papers and reports are confidential in nature and/or are not widely available, particularly to the
private sector33. Gillett (2003) noted that much of the future regional support of relevance to the private
sector was likely to be in the form of analyses, studies, and reviews on important topics which will need to
include oceanic fisheries management. He also noted that many countries do not have a system of fisheries
information distribution to the private sector.
The issues faced by Pacific SIDS are not unique. Other regions are dealing with national and regional oceanic
fisheries resource issues and there are significant lessons to be learnt which could utilise best practice and
help avoid fisheries management failures.
Reports and outcomes of projects are, whoever starting to become more widely available and this should
increase as more use is made of the internet facilities and the widening accessibility and affordability of
broadband access in Pacific SIDS.

Key future activities related to the OFMP
·
Preparationandimplementationofaninformationstrategytailoredtotheneedsandofallnon-state
stakeholders.
·
Providingwidelyavailableandeasilyaccessibleinformationonoceanicfisheriesmanagementissues
and options.
8.2
Stakeholder engagement
The terminal evaluation of the previous GEF oceanic fisheries project (Tortell and Tarte, 2004) noted that
public participation and stakeholder engagement had been `weak in most aspects of the project' with `the
almost total absence of participation by the public, NGOs and the private sector'.
Effectively disseminating information on oceanic fisheries to the lay community and gaining effective
stakeholder engagement is frequently not a priority for Pacific SIDS's governments or fisheries departments. In
contrast, most DWFNs have significant industry input and attendance at RFMO meetings, and in many cases
they drive government policy and negotiating stances. This situation is changing, with some Pacific island
delegations to the MHLC and Preparatory Conference meetings including industry representatives. Given the
stated development objectives of the region with respect to domestic industry development, it is considered
essential that industry is party and has input into the management measures that will, in many cases, have
a significant bearing on operations and profitability. A Regional Tuna Industry Association was established
in September 2004 as the first regional industry NGO (INGO) and offers an opportunity for engagement at a
regionallevel.Somecountieshaveindustryassociationsforlocalbasedfleets,butmostarenotwellresourced
and meet only sporadically.
33
Out of a total 78 tuna industry people contacted during a study by Gillett only two individuals were aware of the report of an airfreight
study by FFA which had been commissioned primarily to assist industry.
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& Performance Indicators for the Pacific Islands Oceanic Fisheries Management Project (OFMP)

Large, global reach environmental NGOs (ENGOs) such as WWF and Greenpeace have extensive and active
fisheries programmes, but are largely unconnected with the formal fisheries management process, both at
national and regional/Commission levels. These ENGOs often have valuable in-country programmes which
offer a ready conduit for information dissemination and engagement by civil society.

Key future activities related to the OFMP
·
Provide opportunities for industry, NGOs and other relevant non-state parties to gain a better
understanding of oceanic fisheries management through interactive processes (e.g. workshops)
and support with relevant, accessible information and updates on Commission and other relevant
initiatives.
·
Promote greater engagement and input by industry, INGOS and ENGOS in oceanic fisheries
management decision-making at national and regional level.
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References
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and Central Pacific Tuna Fisheries, Marine Resource Economics 15, pp.151-177.
Cartwright,I(2002). The Oceanic Fisheries of the Western and Central Pacific. A Baseline Study for the
Strategic Action Plan of the Pacific Mall Islands Developing States, Apia, Samoa.
Cartwright,I(2004). The Oceanic Fisheries of the Western and Central Pacific. A Progress Report for the
Strategic Action Plan of the Pacific Mall Islands Developing States, Apia, Samoa.
CROP (2004). Pacific Islands Regional Ocean Framework for Integrated Strategic Action (PIROF-ISA). Marine
Sector Working Group Council of Regional Organisations of the Pacific. Pacific Forum, Suva, Fiji.
DSE(2000). Introduction to the Logical Framework Approach (LFA) for GEF financed projects A Reader.
Prepared by PARTICIP GmbH for the German Foundation f or International Development, Berlin.
Duda,A(2002). Monitoring and Evaluation Indicators for GEF International Waters Projects. Monitoring and
Evaluation Working Paper 10. Global Environment Facility, Washington.
EconSearch Pty Ltd. 2007. The Further Development and Implementation of FFA's Economic Indicators
Project. A report prepared for the Pacific Islands Forum Fisheries Agency, Honiara, Solomon Islands.
Forum Fisheries Agency 2006. Economic Indicators for the WCPO Tuna Fisheries - First Annual Report 2006,
paper presented to the Officials Forum Fisheries Committee, 61st Meeting, Honiara, April.
GEF,(2003). Program Performance Indicators for the GEF International Waters Programs. GEF Council Paper
GEF/C.22.Inf.8. Global Environment Facility, Washington.
GEF (2006). GEF International Waters Annual Project Performance Results Template; Guidance Information.
Global Environment Facility, Washington.
Gillett, R. (2003). Domestic Tuna Industry Development in the Pacific Islands: The Current Situation and
Considerations for Future Development Assistance. Report 03/01, Forum Fisheries Agency, Honiara.
Gillett,R.andC.Lightfoot.2001. The Contribution of Fisheries to the Economies of Pacific Island Countries,
Asian Development Bank, Manila, December 2001.
Godinot,O.andV.Allain,2003. A preliminary ecopath model of the warm pool pelagic ecosystem. Paper
presented at the 16th Meeting of the Standing Committee on Tuna and Billfish. SCTB16 Working Pap. BBRG-
5. Noumea, New Caledonia: Secretariat of the Pacific Community.
Hampton,J.,P.Kleiber,A.Langley,Y.Takeuchi&M.Ichinokawa(2005). Stock assessment of yellowfin tuna
in the western and central Pacific Ocean. SA WP-1, first meeting of the Scientific Committee of the Western
and Central Pacific Fisheries Commission, 819 August 2005. Noumea, New Caledonia.
Hampton,J.,P.Kleiber,A.Langley,Y.Takeuch&M.Ichinokawa.(2005a). Stock assessment of bigeye tuna
in the western and central Pacific Ocean. SA WP-2, first meeting of the Scientific Committee of the Western
and Central Pacific Fisheries Commission , 819 August 2005. Noumea, New Caledonia.
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Langley,A.,J.Hampton&M.Ogura(2005). Stock assessment of skipjack tuna in the western and central
Pacific Ocean. SA WP-4, first meeting of the Scientific Committee of the Western and Central Pacific Fisheries
Commission, 819 August 2005. Noumea, New Caledonia.
Langley,A(2006). The South Pacific Albacore Fishery: a summary of the status of the stock and fishery
management issues of relevance to Pacific island countries and territories. Oceanic Fisheries Programme
Technical Report No. 37. Noumea, New Caledonia: Secretariat of the Pacific Community.
Langley,A,P.WilliamsandJ.Hampton(2006). 2005 Overview and Status of Stocks. Tuna Fisheries
Assessment Report 7. Noumea, New Caledonia: Secretariat of the Pacific Community.
Lawson,T(2007). Western and Central Pacific Fisheries Commission Tuna Fishery Yearbook 2006. Western
and Central Pacific Fisheries Commission, Pohnpei, Federated States of Micronesia.
Lehodey,P.2001b. The pelagic ecosystem of the tropical Pacific Ocean: Dynamic spatial modelling and
biological consequences of ENSO. Prog. Oceanog. 49: 439-468. Committee of the Western and Central
Pacific Fisheries Commission, 819 August 2005. Noumea, New Caledonia.
Lehodey P (2005). Reference manual for the Spatial Ecosystem and Populations Dynamics Model
SEAPODYM. ME IP1, first meeting of the Scientific Committee of the Western and Central Pacific Fisheries
Commission, 819 August 2005. Noumea, New Caledonia.
Langley,A.&J.Hampton(2005). Stock assessment of albacore tuna in the South Pacific Ocean. SA WP-3,
first meeting of the Scientific Committee of the Western and Central Pacific Fisheries Commission, 819
August 2005. Noumea, New Caledonia.
Molony,B.(2005). Estimates of the mortality of non-target species with an initial focus on seabirds, turtles
and sharks. Information Paper EB WP-I, First regular session of the Scientific Committee of the WCPFC.
Noumea, New Caledonia, 8th19th August 2005.
Molony,B(2005b). Summary of the biology, ecology and stock status of billfishes in the WCPFC, with a
reviewofmajorvariablesinfluencinglonglinefisheryperformance. EB WP-2, first meeting of the Scientific
Committee of the Western and Central Pacific Fisheries Commission, 819 August 2005. Noumea, New
Caledonia.
Tortell,P.andS.Tarte(2004). Terminal Evaluation of the Oceanic Fisheries Management Component. Report
by evaluation Team on project RAS/98/G32 2004 for UNDP/GEF. Forum Fisheries Agency. Honiara, Solomon
Islands.
vanSanten,G.2005. Economic Tuna Industry Indicators: Proposals for a simple annual system to monitor
key parameters of the tuna fishery and its impact on FFA members, report prepared for the Forum Fisheries
Agency by the World Bank, Bethesda, March.
Williams,P.&C.Reid(2005). Overview of the western and central Pacific Ocean (WCPO) tuna fisheries,
including economic conditions 2004. GN WP1, first meeting of the Scientific Committee of the Western
and Central Pacific Fisheries Commission, 819 August 2005. Noumea, New Caledonia.
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& Performance Indicators for the Pacific Islands Oceanic Fisheries Management Project (OFMP)

ATTACHMENT 1
Terms of reference
Background
The goals of the Pacific Islands Management Project (OFMP) PIMS No. 2992 are to combine the interests of
the global community in the conservation of a marine ecosystem covering a large area of the globe's surface,
with the interests of the some of the world's smallest nations in the responsible and sustainable management
of resources that are crucial for their sustainable development.
The project is designed to assist Pacific island countries with efforts as they participate in the setting up and
initial period of operation of the new Tuna Commission34 established by the WCPF Convention, in which they
are expected to reform, realign, restructure and strengthen their national fisheries laws, policies, institutions
and programmes to take up the new opportunities which the WCPF Convention creates and discharge the
new responsibilities which the Convention requires.
The pilot phase of the full project was completed in 2004 under the framework of the Strategic Action
Programme (SAP) of the Pacific Small Island Developing States (Project Number RAS/98/G32/A/1G/99) which
was designed to assist Pacific island countries improve regional capacity for management of transboundary
water resources and create improved management structures to address environmental degradation and
ensure the long term sustainability of ocean fisheries in the Western Tropical Pacific large marine ecosystem
(WTP LME).
The IW Pacific Islands SAP identified the ultimate root cause underlying the concerns about, and threats to,
International Waters in the region as deficiencies in management and grouped the deficiencies into two
linked subsets lack of understanding and weaknesses in governance.
The Project will support the development of a fuller and more detailed set of indicators than is possible
to include in the Logical Framework applying the structure of GEF IW indicators, based on process, stress
reduction and environmental status indicators. These will be designed not only for use within the Project but
more broadly for use by stakeholders including the Pacific SIDS and other WCPF Commission members to
measure progress over the longer term towards sustainable use of the oceanic fishery resources of the region
and protection of biodiversity in the WTP LME.
Purpose
To describe the baseline situation, in mid-2005 before OFMP implementation in relation to:
·
measuresinplaceatnational,sub-regionalandregionallevelfortheconservationandmanagement
of the oceanic fish stocks of the Western & Central Pacific Ocean (WCPO) and the protection of the
WTP LME from fisheries impacts; and
·
the status of the fisheries, the target stocks and the ecosystem including trophic status and status of
key non-target species.
34
Western and Central Pacific Fisheries Commission
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The Study will provide initial measures of the indicators outlined in the Logframe Matrix but more specifically
those detailed in Annex L (Optional Annexes) of the project document which is appended. These indicators
apply the structure of process, stress-reduction and environmental status indicators set down by the GEF
International Waters Operational Strategy.35
Scope of Work
The Consultant shall:
1.
brieflysummarisetheapplicableGEFinternationalWatersOperationalStrategyanddescribetheGEF
International Waters process, stress-reduction and environmental status36 indicators framework at a
project level;
2.
review the indicators described in the Logframe matrix and Annex L for the three Project
components, and suggest any appropriate revisions;
3.
withinthelimitsoftheinformationavailable,assessandbrieflydescribethestatusofeachofthe
indicators, where appropriate, at mid-2005 (using for example the information reported to the 1st
meeting of the WCPFC Scientific Committee in August 2005); and
4.
prepare a report that can be used as a baseline to assess progress in the indicators during, and at the
conclusion of, the Project.
Implementation
The Study will be undertaken largely as a desk study using information available from the Pacific Islands Forum
Fisheries Agency (FFA) and the Secretariat of the Pacific Community Pacific Oceanic Fisheries Programme
(SPC/OFP).
The Study will draw from and build on the Baseline and Progress Studies undertaken for the Pilot Phase of the
Oceanic Fisheries Management Component of the GEF IW SAP Project37.
The consultant shall:
·
visitHoniaraandNoumeaforconsultationwithFFAandSPC/OFP;
·
reviewrelevantavailableGEFIWandOFMPdocumentsonindicators,andmonitoringandevaluation
more generally;
·
prepareadraftreport;and
·
prepareafinalstudyreporttakingintoaccountcommentsonthedraftbyFFAandSPC/OFP.
35
As defined in the GEF IW Monitoring and Evaluation Working Paper 10: Monitoring and Evaluation Indicators for GEF International Waters
Projects.
36
Measures actual changes and long-term improvements in the water environment.
37
Cartwright. I, (2002).The Oceanic Fisheries of the Western and Central Pacific: A Baseline Study. Strategic Action Programme (SAP) of the
Pacific Small Islands Developing States. Project N0:RAS/98/G32/A/1G/99.
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Expected Outcome
The anticipated outcomes and benefits of this study are:
·
identificationofasetofmeasurableindicatorsfortheOFMProjectusingtheGEFIWapproachto
indicators; and
·
abaselineassessmentofprojectindicatorsprovidingabasisforassessingprogressbytheOFM
Project against a set of project indicators.
Time Schedule and Reporting Requirements
A first draft report should be submitted to FFA before the first week in August 2008. The report will be
subjected to review for comments and sent back to consultant to incorporate comments into final report.
The final report should be submitted to the Agency before the close of business Friday 22 August 2008.
This assignment is to be implemented for a period of twenty (20) working days.
The work of the Consultant will be monitored by the Project Coordinator at the Forum Fisheries Agency. The
consultant will report directly to the FFA. The reports and all materials produced by the Consultant will be
submitted to the Agency upon completion of assignment.
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ATTACHMENT 2
Suggested indicators and baselines for Section 4 reporting under
the PIR/APR - Progress towards achieving project objectives
Project Objectives38
Description of Indicators
Baseline Level
& Outcomes
Information & Knowledge
Knowledge of the dynamics of target
Understandingoffleetoperating
Objective
fish stocks, including their exploitation
dynamics and links to EEZ catch/
characteristics & fishery impacts, at
effort inadequate and requirement
To improve understanding of the
appropriate spatial scales.
to better inform impacts on stocks
transboundary oceanic fish resources
of various management options.
& related features of the Western
& Central Pacific Warm Pool Large
Flow of fisheries data in standardised
National databases being
Marine Ecosystem.
formats, including estimates of catch,
establishedandsomedataflow
effort and catch composition.
occurring; inadequate to meet
WCPFC reporting requirements.
Knowledge of fishery impacts on non-
Current levels of observer data
target, dependent & associated species,
require enhancement (detail and
including key byproduct species (sharks
coverage) to improve estimates of
and billfish).
size/species composition and by-
catch estimates.
Understanding of the pelagic ecosystem
Limited consideration given to
as a whole, including foodwebs, the
ecosystem effects and limited
effects of environmental change and
availability of fisheries information
productivity.
on the environmental impacts,
including impacts of regime shifts
on recruitment. Work on enhanced
modelling of regional pelagic
ecosystem processes to better
predict tuna stock distribution and
abundance commenced.
Use of above information and knowledge
MULITFAN-CL modelling applied
to inform and improve assessments.
to four key species on a regional
basis (spatially structured), but
improved parameterisation of the
stock assessment model required
to explain inter-regional effects/
impacts of fishing.
Understanding of Seamount ecosystems,
Little knowledge of confirmed
especially their relation to migratory
seamount occurrence in the region
pelagic fisheries.
or their significance to the pelagic
ecosystem.
38
This project has two objectives
Baseline Study
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Project Objectives
Description of Indicators
Baseline Level
& Outcomes
Governance Objective
Function of the WCPFC, including its
WCPFC had preliminary meeting
subsidiary bodies.
in December 2004 to adopt some
To create new regional institutional
Rules & Regs, establish the SC & TCC
arrangements, & reform, realign &
& elect officers of commission &
strengthen national arrangements
subsidiary bodies.
for conservation & management
of transboundary oceanic fishery
Number of binding conservation &
No binding regional stock
resources.
management measures for target
conservation & management
stocks & the WTP LME adopted and
measures in place for the WCPO.
implemented.
Amendments to domestic laws and wider
Legislation in PacSIDS is inadequate
legal reforms.
to enable the full implementation of
international fisheries agreements,
including the WCPF Convention
and Commission programmes,
regional agreements and national
management plans.
Management plans and strengthened
Some management planning and
policies and strategies nationally and at
policies in place, but most require
the Commission.
strengthening and/or development.
Function of national fisheries
Most fisheries departments
management institutions.
running on traditional government
department models, reliant on
government funding and with
limited capacity.
Level of compliance activity and
Limited national capabilities and
effectiveness.
IUU pressure building as fishing
opportunities reduce with the
introduction of management
measures.
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Project Objectives
Description of Indicators
Baseline Level
& Outcomes
OUTCOME 1:
Collection of consistent, compatible,
Data collection occurring in all PacSIDS
relevant & reliable information by
with gaps in the quality of data from
a) Improved quality, compatibility
national administrations.
domesticfleets.Dataforms/formatsnot
& availability of scientific
fully consistent.
information & knowledge on the
oceanic transboundary fish stocks Data handling and management
Wide variability in performance, with
& related ecosystem aspects of
capability.
some PacSIDS having well-developed
the WTP warm pool LME, with a
data management systems, while
particular focus on the ecology of
others require assistance. Limited data
seamounts in relation to pelagic
processing/query capability.
fisheries, & the fishing impacts
upon them.
Availability of fisheries status/
Increasing emphasis on national
stock assessment information to
management approaches through
assist fisheries development and
plans, based on stock status
management arrangements nationally
information. Most need updating. Some
and at the Commission.
availability of model and other fisheries
assessment outputs to inform national
and Commission strategies/approaches.
Reach (sharing) of information and
Scientific information & knowledge is
analysis between stakeholders with
shared among countries voluntarily,
respect to transboundary oceanic fish
primarily through SPC/OFP & the SCTB.
stocks & related ecosystem aspects.
Regional scientific work carried out by
SPC with donor funding.
Number of biological samples collected
Stomach samples collected 2,754.
and analysed to inform trophic
Stomach samples examined 1,914.
relationships.
Understanding of fisheries and
Little knowledge of confirmed
ecosystem role of seamounts in WCPO.
seamount occurrence in the region
or their significance to the pelagic
ecosystem.
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Project Objectives
Description of Indicators
Baseline Level
& Outcomes
b) This information being used by
Conservation and management
Annual meetings of the SCTB provide a
the WCPFC & PacSIDS to assess
measures developed and implemented
forum to discuss scientific issues related
measures for the conservation &
by PacSIDS and WCPFC, based on
to data, research & stock assessment
management of transboundary
improved information by PacSIDs,
including providing statements on
oceanic fishery resources &
including NTFSRs.
stock status & opinions on scientific
protection of the WTP LME.
issues. No agreed limit or target
reference points.
Sustainable catch/effort limits set by
Some PacSIDS, as part of management
PacSIDS.
plans, have implemented limits; most
have not.
Production of management scenarios/
Limited scenario planning; initial
management strategy evaluation based
modelling of spatial effects of various
on improved information, including
management measures commenced.
impacts of climate variability.
Extent of introduction of ecosystem
Initial EBFM workshop held and
based fisheries management (EBFM)
commitment to EBFM made by FFC
approaches at national level.
No Baselines for ecosystem monitoring
and operation to be developed under
project activities.
Extent of ecosystem EBFM approach
EBFM approach outlined in WCPF
used by the WCPFC Scientific
Convention by not effect given.
Committee.
c) National capacities in oceanic
Degree to which PacSIDS meet
SPC assessment shows that no PacSIDS
fishery monitoring & assessment
regional/WCPFC commitments to
have the capacity to fully meet WCPFC-
strengthened, with PacSIDS
collect and provide national data.
related responsibilities in fishery
meeting their national & WCPFC-
monitoring & data provision.
related responsibilities in these
areas.
Number of PacSIDS' nationals with
Heavy reliance on SPC for the provision
capability to understand and use
of advice and assistance with data
fisheries information, data and stock
collection, handling and analysis.
assessments, to inform national
and regional (WCPCF) fisheries
management. Clearly identified as a gap
in the PDF-B study.
Level of engagement of PacSIDs'
Limited understanding of stock
nationals in Commission Scientific work,
assessment process and capacity to
including the Scientific Committee,
engage in discussions to interpret and
and in national Tuna Status Report
utilise data from stock assessments and
preparation and interpretation.
other sources to inform management
decisions.
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Project Objectives
Description of Indicators
Baseline Level
& Outcomes
OUTCOME 2:
Administrative operation of WCPFC with Rules of Procedure & Financial Regs
a) The WCPFC established &
a formally adopted framework of rules &
adopted at WCPFC1 following inputs
beginning to function effectively.
regulations.
from SAPI Project. Staff regs, subsidiary
bodies rules needed.
Budget provisions for PacSIDS, to enable Financial Regulations adopted by
meaningful engagement in the work of
WCPFC1 includes requirement that the
the Commission, including provision for
draft budget has an item specifying
PacSIDS to attend WCPFC meetings.
the costs required to finance the
attendance costs for one representative
from each developing State Party to
the Convention, and where appropriate
territories and possessions, to each
meeting of the Commission and to
meetings of the subsidiary bodies to the
Commission.
Establishment and operation of
No appointments to the secretariat.
WCPFC Secretariat and core science &
WCPFC staff regulations adopted
compliance programmes & Committee
at WCPFC1. No WCPFC compliance
structures.
programme operational. At WCPPFC1
budget adopted which includes a
nominal amount for funding provisions
of scientific and data services by SPC/
OFP during 2005.
Adoption & Implementation of
Authorisation/Notification/Vessel
Compliance Measures.39
Marking adopted in Dec 2004.
b) Pacific Island nations playing
Participation by PacSIDS and their
13 of 15 PacSIDS ratified or been
a full role in the functioning &
nationals in Commission and associated
authorised to participate as territories.
management of the WCPFC, & in
bodies' meetings.
the related management of the
fisheries & the globally-important
Record of provision of fisheries
Yet to commence.
LME.
information to WCPC by PacSIDS.
Level of engagement by PacSIDS in
At WCPFC1 in December 2004,
decision-making & policy adoption
PACSIDS participated effectively on
processes for WCPF fisheries
WCPFC administrative issues, but
management.
did not participate effectively on
compliance, science & technical issues.
39
Not in the original logframe, inserted as Stress Reduction Indicator to meet GEF IW reporting requirements
Baseline Study
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Project Objectives
Description of Indicators
Baseline Level
& Outcomes
c) National laws, policies, institutions Status of laws & policies in relation
Most countries require significant
& programmes relating to
to their alignment with national
assistance to review and reform their
management of transboundary
commitments to the WCPF Convention,
legislation to achieve compliance with
oceanic fisheries reformed,
other relevant MEAs, & global treaties &
Commission obligations. The legislation
realigned & strengthened to
conventions.
of nine PacSIDs requires updating
implement the WCPF Convention
through the use of regulation and the
& other applicable global &
remaining six will require a new act and
regional instruments.
regulations for this purpose.
Status of national institutions in relation
Limited capacity and few opportunities,
to their ability to support national roles
to discuss and develop national and
in WCPFC.
regional positions on WCPF issues.
d) National capacities in
No of national staff with increased
Project design work identified lack
oceanic fisheries law, fisheries
technical capacities & knowledge.
of capacities in fisheries law and
management & compliance
compliance and especially fisheries
strengthened.
management as important constraints
to achieving Project objectives.
OUTCOME 3:
Progress towards achieving Project
Not applicable.
a) Effective project management at
objectives.
the national & regional level.
Budgets and reporting schedules.
Annual and mid-term reviews.
b) Major governmental & non-
Number of participants and spread of
Phase I terminal evaluation noted
governmental stakeholders
regional stakeholder/NGO workshops.
lack of NGO involvement as a major
participating in project activities
weakness NGO.
& consultative mechanisms at
national & regional levels.
Website hits.
Website to be established.
Attendance and activity/input at
The larger regional NGOs and some
Commission and associated meetings,
industry attending Commission and
and regional (FFA) regional and sub-
associated meetings. Considerable
regional workshops.
gap in understanding of WCPFC and
fisheries issues among smaller NGOs,
communities and other stakeholders.
Amount of `plain English' information/
SPC and WCPFC websites have
promotional information prepared and
considerable amounts of reports and
disseminated to NGOs/stakeholders.
technical information, most of which is
not accessible to, or understandable by,
the lay person.
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Project Objectives
Description of Indicators
Baseline Level
& Outcomes
c) Information on the project & the
Feedback from sub-regional
Design process identifies lack of
WCPF process contributing to
management and other workshops.
simple, clear information on the WCPF
increased awareness of oceanic
preparatory process as a problem.
fishery resource & ecosystem
Availability, transparency & simplicity of
management.
information access.
Relevance & significance of available
information.
Public awareness raising at national &
regional policy level.
d)Projectevaluationsreflecting
Project evaluation ratings.
Not applicable.
successful & sustainable project
objectives.
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ATTACHMENT 3
Suggested indicators and baselines for Section III of the PRR (GEF).
Process Outcomes and Indicators
Process OUTCOMES
Process INDICATORS
Project
Rating
Catalytic
Project
Effective national inter-
MU
Information on this issue from the 15 Pacific SIDS not yet
ministry coordination.
available to the Project.
Existence of inter-ministry coordination mechanisms. Nos.
of meetings/contacts of inter-Ministry coordination. Data
yet to be collected. Contacts at the national between
relevant national government institutions dealing with
fisheries management issues have been enhanced
particularly on the WCPFC issues relating to compliance of
the Conservation and Management Measure.s
Analysis of inter-ministry cooperation still outstanding.
Fisheries management processes at national levels are
progressively inclusive through processes such as EAFM
and Sub-regional WCPFC working group meetings.
Comment on current outcomes and indicators: Core GEF Requirement. Current indicators are logical and in accordance
with GEF guidelines. Note data on inter-ministry coordination is being collected and analysed. The outcome of this analysis
will be a useful indicator and its value is highlighted in a number of GEF guideline documents as a precursor to effective
regional coordination and cooperation. In addition, some view of the success of the coordination, as evidenced from reports
from committees etc would be necessary to go beyond the indicator of the formation of a committee (i.e. a measure of
its effectiveness). That said, the hypothetical GEF example seems to suggest that the presence of reports of national inter-
ministry Committee meetings is an adequate indicator. Suggested new indicators - None
Stakeholder
S
Eight NGOs accorded All Pacific SIDS participated in the meetings of the
involvement in SAP
observer status and
WCPFC, and its Scientific Committee (SC) and Technical
implementation.
participated in the
& Compliance Committee (TCC), with 1 participant each
WCPF Commission
financed from the WCPFC budget, additional participants
(WCPFC) meetings in
nationally funded also supported by technical advice
the reporting period.
from the Project.
ENGO & INGO representatives have participated in
most national and regional Project activities including
pre-WCPFC, SC & TCC meetings and Project National
Consultative Committees.
High level of participation by PacSIDS in WCPFC (100%), SC
& TCC meetings (80%) maintained.
ENGOs (WWF) & INGOs (PITIA) involved are involved in
Project execution.
Pacific fisheries agenda close to saturation but Pac SIDS
still maintain high levels of participation at WCPFC4 (100%)
SC3 & TCC (90% respectively). ENGO (WWF) & INGO (PITIA)
attend WCPFC meetings and undertake awareness raising
project activities.
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Process OUTCOMES
Process INDICATORS
Project
Rating
Catalytic
Project
Comment on current outcomes and indicators: Core GEF Requirement. Current indicators are logical and in accordance
with GEF guidelines. Suggested new indicator: Development of a Stakeholder Involvement Plan (using the ProDoc
stakeholder analysis) with specific target groups (private sector ENGOs, broader community), including tailored extension/
communication strategies and means of measuring progress (FFA media section have advised that this would be possible).
Progress against this plan should then be reported as an indicator.
Newly established
S
WCPFC established
SC established & first regular session held in August 2005.
and/or strengthened
and adopted Rules
The SC;
transboundary waters
of Procedure and
· established specialist WGs in Fishing Technology,
institutions.
organizational
Methods, Statistics, Biology, Stock Assessment and
structure at its First
(The WCPFC established
Ecosystem and Bycatch;
Session in December
and beginning to
· agreed on the future work programme for the SC and
2004.
function effectively).
· provided advice to the WCPFC on the status of major
stocks and impacts of conservation and management
measures.
TCC established & first regular session held in Dec 2005.
The TCC began establishment of: a compliance programme
including observer, boarding & inspection, VMS schemes
and a process for identifying infringements and applying
sanctions.
Executive Director and other key WCPFC staff appointed by
December 2005.
WCPFC & subsidiary bodies operating with a complete
set of Rules & Regulations & a Secretariat, with sustainable
financial arrangements (by Dec 2007) - Draft Rules for
subsidiary bodies being considered by SC & TCC.
Staff Regs adopted & Secretariat posts all filled. (by Dec
2007) - Staff Regs adopted. Secretariat posts being filled
with some difficulty.
TCC operational (by Dec 2007) - Achieved 2005.
Most staff positions filled at WCPFC Sec. Subsidiary bodies
have yet to adopt individual rules of procedure.
Comment on current outcomes and indicators: Core GEF Requirement. Current indicators are logical and in accordance
with GEF guidelines. Suggested new indicator: The degree to which there has been high-level endorsement, multi-ministry
support, staff etc devoted to the WCPFC process. This would be a useful indicator of how committed governments are to the
process these could be evidenced from attendance records on an annual basis.
Baseline Study
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Process OUTCOMES
Process INDICATORS
Project
Rating
Catalytic
Project
Adoption of national
HS
All major fishing
WCPFC Convention entered into force in June 2004, with 12
& regional legal, policy
states except the
of the 13 Convention ratifications to bring the Convention
& institutional reforms
US have ratified the
into force from Pacific SIDS, following PDF-B support.
that address priority
Convention at June
WCPFC Convention ratified for 33 of 34 States & Territories
transboundary concerns.
2006.
participating in WCPFC process. This includes all major
(The WCPF Convention
coastal & fishing states except Indonesia (Depends on US
being implemented).
ratifying as announced by June).
Convention entered in force for the USA 27 July 2007.
Indonesia was granted a continuance of its status as a Co-
operating Non-member at WCPFC4, Dec 2007. Founding
members encouraged Indonesia to move quickly towards
full membership.
Comment on current outcomes and indicators: Core GEF Requirement. Current indicators are logical and in accordance
with GEF guidelines. Suggestions: None.
Regional institutional
HS
Pacific Island
WCPFC-related legal, policy and institutional reviews under
arrangements for
Forum Heads of
way in many Pacific SIDS, supported from the Project by
oceanic fisheries
State established
national fishery status reports (2 in 2005-06) legal reviews
management
a Ministerial
(4 in 2005-06) and reviews of management plans based
strengthened.
committee to
on EAFM, and by regional scientific, legal, compliance and
oversee regional
policy workshops and consultations.
fisheries affairs which Fisheries ministers continue to met annually (Wellington NZ
met in May 2004 and
2006 & Palau 2007) and issues relating to oceanic fisheries
May 2005.
are addressed at the Pacific Islands Forum Heads of State
meetings.
WCPFC related legal, policy & institutional reviews
progressed further in Pac SIDS. National fisheries Status
reports ( 5 reports 2007-08), legal reviews (3 in 2006-07)
reviews of TMPs & EAFM, & by regional scientific, legal,
compliance and policy workshops and consultations.
Comment on current outcomes and indicators: Someoftheindicatorsseemtoreflectnationalarrangementsdeveloped
by/supported through regional arrangements/ assistance rather than `regional institutional arrangements' while others
(Ministerial meetings, Forum discussions etc) are regional.
Suggest either:
i) focusing indicators more on regional institutional arrangements and shift national indicators to the
outcome below (National laws, polices etc); or
ii) changing outcome to `Regional institutional arrangements for improving oceanic fisheries management
strengthened'.
Under the new outcome in 2 ii) it would then be possible to include the regional meeting/forum indicators as well as the
reviews and status reports which are a regional activity, delivered nationally.
Suggest include an additional indicator based on OFP- driven outputs in terms of regional workshops to discuss the status
of the oceanic fisheries resource and the marine ecosystem.
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Process OUTCOMES
Process INDICATORS
Project
Rating
Catalytic
Project
National laws, policies,
S
PacSIDS are implementing WCPFC measures & national
institutions and
conservation & management measures Assessment yet to
programmes relating
be completed.
to management
Status remains unchanged.
of transboundary
oceanic fisheries
reformed, realigned
and strengthened to
implement the WCPF
Convention and other
applicable global and
regional instruments.
Comment on current outcomes and indicators: Assessment of progress to be developed.
Suggested new indicators:
National legislation - Degree to which countries' legislation, meets the requirements of WCPFC and other international
fisheries agreements e,g. number of countries with compliant legislation.)
National management plans and Policies Degree to which national tuna management plans, Acts etc set policy direction
in accordance with the WCPF Convention and support the introduction of WCPFC conservation and management
measures.
Financial sustainability
HS
WCPFC has begun to WCPFC adopted Financial Regulations and schedule of
of joint transboundary
finance oceanic SPC
financial contributions at its First Session in December 2004,
waters institutions.
fisheries monitoring
basedlargelyupontheprincipleof"thosewhofishshould
and science activities
pay"(70%ofcontributionsbasedoncatcheswithdiscount
previously funded by for developing countries).
donors.
Satisfactory level of payment of CCM financial contributions
Japan pledged
The failure to pay three consecutive annual contributions
$2m over 5 years
results in the withdrawal of voting privileges. Some
to the WCPFC for
instances of arrears to date.
technical assistance
Financial Regulations include provision for a Special
(implementation to
Requirements Fund for SIDS. Permanent HQ jointly donated
be coordinated with
by FSM and China.
the GEF PIOFMP).
Voluntary extra-
WCPFC core programmes not blocked by lack of funding -
budgetary assistance
To date there are no programme implementation demands
for specific WCPFC
attributed to lack of funding.
activities provided by Significant contributions by New Zealand (Tagging
other Commission
NZD5m) and others towards Commission work
Members.
programmes over and above financial contributions.
Comment on current outcomes and indicators: Current indicators are logical and in accordance with GEF guidelines.
Suggestions: None.
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Process OUTCOMES
Process INDICATORS
Project
Rating
Catalytic
Project
Improved information
S
WCPFC has
MOU between SPC and the WCPFC provides the basis for
and knowledge on the
established
provision of data management and scientific services by
oceanic transboundary
arrangements with
SPC to the WCPFC.
fish stocks and related
ISC or data services
WCPFC adopted standards for provision of WCPFC data.
ecosystem aspects of
and scientific
the WTP warm pool
services related to
SPC oceanic fisheries data and scientific programmes,
LME being used by the
northern WCPO
including SIDS capacity building, strengthened by
WCPFC and Pacific SIDS
stocks and with
resources from the Project, the EU and the WCPFC.
to adopt and apply
IATTC relating
Tuna Fishery Data Management System installed &
measures to enhance
to WCPO/EPO
operation in 7 Pacific SIDS, national Observer Programmes
the conservation
cooperation.
established in 10 of the 15 Pacific SIDS.
and management of
transboundary oceanic
Establishment of SC & subsidiary bodies including bodies
fishery resources and
for statistics & Ecosystem/Bycatch work (by Dec 2007) -
protection of the
achieved 2005.
biodiversity of the WTP
Binding agreement on protocols for fisheries data
LME.
collection & provision, including catch & effort logs, & port
& onboard sampling (by Dec 2007) - Catch & Effort Protocol
in place.
Establishment of Commission data management structure
and, databases (by Dec 2007) - Port & onboard sampling
sampling protocols still under consideration.
Appointment of science staff and/or contracting of experts
for the provision of scientific services (by Dec 2007) -
Interim arrangements in place.
Agreement on scientific work programme, including
forms of stock assessment analysis (by Dec 2007) Staff
appointed, interim arrangements agreed for scientific
experts, subject to review in 2007.
(a) seamount occurrence documented using available data.
b) Impacts of seamounts on physical/biological
oceanography and pelagic fisheries better understood -
The occurrence of seamounts has been documented using
available data, but further work is required.
Establishment of SC & subsidiary bodies including bodies
for statistics & Ecosystem/Bycatch work (by Dec 2007) -
achieved 2005.
Establishment of SC & subsidiary bodies which include
Specialist working groups for biology, Ecosystem & By-
catch, Fishing Technology, Methods, Statistics and Stock
Assessment as at Dec 2007.
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Process OUTCOMES
Process INDICATORS
Project
Rating
Catalytic
Project
Establishment of an Indonesia & Philippines Data Collection
Project to address the gaps.
MOUs to establish formal relations with IATTC & other
organizations drafted & being reviewed by the Commission,
SC & TCC.
Regional Tagging Programme Phase II Commission
sponsored research project.
Commission adopted data submission protocols outlined in
"ScientificDatatobeProvidedtotheCommission"(Binding
agreement on protocols for fisheries data collection &
provision).
Port & onboard sampling protocols still under
consideration.
Agreement on scientific work programme, including
Investigation of alternative stock status reference points
and the development of a management strategy
evaluation:
(a) seamount occurrence documented using available
data; and
(b) impacts of seamounts on physical/biological
oceanography and pelagic fisheries better understood
- The occurrence of seamounts has been documented
using available data, but further work is required
Comment on current outcomes and indicators: Current indicators are logical and in accordance with GEF guidelines.
Suggestions: None.
Information on the
S
OFM Project webpage established April 2006.
Project and the WCPF
IWLEARN participation, publications.
process contributing
to increased awareness
Project newsletter published and collaboration with ENGO
of oceanic fishery
of lay documentation (awareness raising).
resource and ecosystem
management;
Comment on current outcomes and indicators: Current indicators are logical and in accordance with GEF guidelines.
Suggested new indicator: Stakeholder involvement plan.
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Stress Reduction Outcomes and Indicators
Stress Reduction OUTCOMES
Stress Reduction INDICATORS
(report vs. baseline if possible)
Project
Rating
Catalytic
Project
Improved information
HS
SPC and the SC provided advice to WCPFC1 and 3
and knowledge on the
identifying stocks requiring management attention and
oceanic transboundary
assessing the projected impacts of a range of conservation
fish stocks and related
and management measures.
ecosystem aspects of
WCPFC1 (Dec 2004) adopted conservation and
the WTP warm pool
management measures barring vessels of states that were
LME being used by the
not WCPFC Members or cooperating non-Members (CCMs)
WCPFC and Pacific SIDS
from operating in the region and establishing a record of
to adopt and apply
vessels authorised to operate in the WCPO.
measures to enhance
the conservation
WCPFC2 (Dec 2005) adopted conservation and
and management of
management measures requiring Members to:
transboundary oceanic
· not increase fishing effort for bigeye & yellowfin beyond
fishery resources and
current levels;
protection of the
· cap purse seine effort at 2004 levels or an average of
biodiversity of the WTP
2001 to 2004;
LME.
· limit the longline catch of bigeye generally to 2001-04
average levels;
· not increase numbers of fishing vessels targeting South
Pacific albacore; and
· keep fishing effort for North Pacific albacore north of the
equator not greater than current levels.
WCPFC2 also adopted resolutions to apply the FAO
International Plan of Action to Reduce the Incidental Catch
of Seabirds, and the FAO Guidelines to Reduce Turtle
Mortality, reduce incidental catches of other non-fish
species and avoid vessel transfers that contribute to over-
capacity.
Measures of target stock status in relation to agreed
management reference points available Stock status
measures available, but no agreed reference points.
Measures of status of ecosystem including trophic
status & status of key non-target species Proposal under
consideration.
Provision of scientific advice to the Commission including
information & recommendations on TACs & other
management measures from the Scientific Committee to
the Commission - Achieved, ongoing.
Measures of the impact of environmental variability on
target species abundance & distribution - Achieved,
ongoing.
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Stress Reduction OUTCOMES
Stress Reduction INDICATORS
(report vs. baseline if possible)
Project
Rating
Catalytic
Project
Assessments available of the impact of fishing on target &
non-target species - Achieved & ongoing for target species,
less progress for non-target species.
Analysis made of impact of possible conservation
measures -Achieved & ongoing.
Status of stock available but alternative stock status
reference points to be investigated.
Provision of scientific advice to the Commission for
management measures from the Scientific Committee -
Achieved, ongoing.
Measures of the impact of environmental variability on
target species abundance & distribution - Achieved,
ongoing.
Assessments available of the impact of fishing on target
& non-target species - Achieved & ongoing for target
species. (Requirements for data collection & reporting of
shark catches to the lowest possible taxonomic level now
imposed.
Analysis made of impact of possible conservation
measures -Achieved & ongoing.
Development of an Ecological Risk Assessment on going.
Comment on current outcomes and indicators: The current indicators do not, as suggested in the GEF Guidance
information (2006) characterize and quantify specific reductions in environmental/waterbody stress. They do, however
provide insight into the information available for assessing environmental stress, and relate to the project outcome as
stated. They also provide on-the-ground evidence that action has occurred. GEF (2006) suggests that indicators should
establish evidence of stress reduction and thus be measured and reported against a previous baseline/year. The evidence
should focus on reducing the human behaviours that are known to contribute to the degradation of the international
waters addressed by the GEF project (e.g. level of fishing effort, use of particular fishing gears). For the WCPO, the challenge,
in terms of stress reduction, is to address key emerging areas of concern relating to managing and/or reducing fishing
pressure, rather than having to rebuild severely depleted fish stocks (`prevention of damage to threatened waters- - GEF OP
9 Guidance). The current indicators do not appear to be the type of year-on-year measurable indicators preferred by GEF.
While Environmental Status Outcomes and Indicators include those relating to socio-economic performance, it appears
that the GEF interpretation of `stress' relates to that placed on living and non-living marine resources and their associated
ecosystems.
Suggested new indicators:
While no specific outcomes are stipulated, it would be useful to measure the results of on the ground actions to meet
agreed WCPFC conservation and management measures the targets could be updated as measures are agreed, and
reported on an annual basis. Currently, these would be:
· Level of fishing effort for bigeye & yellowfin.
· Purse seine effort levels.
· Longline catch of bigeye.
· Numbers of fishing vessels targeting South Pacific albacore.
· Fishing effort for North Pacific albacore north of the equator.
· FAD measures.
Baseline Study
79
& Performance Indicators for the Pacific Islands Oceanic Fisheries Management Project (OFMP)

Environmental Status Outcomes and Indicators
Environmental & Socioeconomic Status
Environmental & Socioeconomic Status
OUTCOMES
INDICATORS
Project
Rating
Catalytic
Project
Pacific SIDS improve
S
FFA produced a first report to measure indicators of socio-
the contribution
economic contributions of oceanic fisheries.
to their sustainable
Target stocks within limits agreed by the WCPFC. Limits yet
development from
to be agreed.
improved management
of transboundary
Significant reductions in mortality from fishing on non-
oceanic fishery
target species. High priority being given to improving data
resources and from the
on mortality. Impacts not yet measurable.
conservation of oceanic
Target stocks within limits agreed by the WCPFC but a
marine biodiversity
reduction in fishing mortality rate for bigeye & yellowfin is
generally.
proposed. Limits yet to be agreed.
Improved information
S
SPC and the SC provided estimates to the Commission of:
and knowledge on the
· key indicators of status of four major tuna stocks; and
oceanic transboundary
· estimates of mortalities of non-target species from
fish stocks and related
fishing (including sharks, seabirds and turtles) and, inter
ecosystem aspects of
alia, a proposal for ecosystem monitoring, measuring of
the WTP warm pool
ecosystem indicators and ecosystem reference points and
LME being used by the
ecosystem model development.
WCPFC and Pacific SIDS
to adopt and apply
Positive results for broader ecosystem indicators (yet to be
measures to enhance
identified). Proposal for monitoring ecosystem indicators
the conservation
presented. Impacts not yet measurable.
and management of
Positive results for broader ecosystem indicators (yet to be
transboundary oceanic
identified). Proposal for monitoring ecosystem indicators
fishery resources and
presented (Ecological Risk Assessment). Impacts not yet
protection of the
measurable.
biodiversity of the WTP
LME.
Baseline Study
80
& Performance Indicators for the Pacific Islands Oceanic Fisheries Management Project (OFMP)

Environmental & Socioeconomic Status
INDICATORS
Project
Comment on current outcomes and indicators: GEF(2006) suggests these indicators should `demonstrate improvements
in the environmental status of transboundary water resources as well as any socioeconomic improvements' as a result
of the activities of the project. The project outcomes as stated make identifying such indicators difficult. In addition,
developing meaningful and measurable environmental indicators for this project is challenging due to i), the fact that it is
being implemented on a water body the size of the WCPO ii) the highly diverse and complex ecosystem and associated
fisheries; and iii) the timeframe within which the project is set, given that it will take several years, and well beyond the
duration of the project, before it will be possible to measure the effects of management measures that are only now in the
process of being implemented.
The two outcomes lend themselves to two types of indicator. The first type, to measure progress on terms of contribution
to sustainable development, would be most appropriately linked to socioeconomic indicators, particularly in terms of
measuring the increase in potential benefits to Pacific SIDs of maintaining or improving the sustainability of commercially
important fish stocks as a result of project activities. While the current discussion on reference points has been mostly
limitedtobiologically-linkedlimitreferencepoints,itwillbeimportanttodeveloptargetreferencepointsthatreflect
optimal economic benefits, particularly to Pacific SIDs. While no such points or indicators are available at this time, when
they are available, indicators to measure progress towards them should be included under this first type of indicator, and
progress measured beyond the life of the project.
Itis/willbedifficulttoisolateouttheimpactsofprojectactivitiesonprofitability/netprofit,giventhemajorfluctuationsin
costs (esp. fuel prices), fish prices and natural changes to abundance/availability of target species.
In addition to industrialized fisheries, tuna and tuna related species are being seen as being increasingly important to food
security for Pacfic SIDs, particularly as reef fish and other near-shore species become depleted. An index of the importance
of tuna and tuna related species to economies would be a useful socioeconomic indicator. Gillett's studies are likely to be
of assistance in this regard.
Suggested new indicators:
i
Value of access. The successful implementation of the Vessel Days Scheme through cooperative management
should increase the value of fishing opportunities substantially, especially as trading of Vessel Days commences.
Access fees are a similar, coarser-scale indicator.
ii
Catch value. Similarly, through restricting catches in a market that is highly sensitive to supply (canning-based
operations), prices are likely to be higher than would be the case where greater access and catch is permitted.
Previous successful efforts by DWFNs to restrict the supply of purse seine-caught skipjack have demonstrated this.
iii
Optimal management outcomes. Finally, in the case of multi-gear, multi-species fisheries, the trade-off between
management options by the Commission or FFA country groupings (e.g. PNA) needs to be carefully considered in
terms of optimal economic, social and environmental outcomes and consideration of `winners and losers'. Again,
some indicators of how management measures are performing towards achieving desired outcomes are necessary.
FFA has previously undertaken studies showing the differential impacts of transboundary management decisions.
Baseline Study
81
& Performance Indicators for the Pacific Islands Oceanic Fisheries Management Project (OFMP)

Environmental & Socioeconomic Status
INDICATORS
Project
The second type of indicator could be used to measure conservation and management outcomes, which, as stated above,
have been linked more to mitigating impacts on species that are showing signs of stress (yellowfin and bigeye). In addition
some efforts have been made to reduce interactions with protected and endangered species and in particular turtles at risk
from longline fishing. There are a greater number of indicators available in this category.
It is suggested that the stock indicators used by the Scientific Committee of the WCPFC be used as project indicators
pending the development of more formally agreed reference points and indicators.
Suggested new indicators
Year on year estimates of the following indicators for the four key species (yellowfin, bigeye, skipjack and albacore),
including assessment of the existence of overfishing or overfished stocks:
· Impact of fishing, expressed as a % of unexploited biomass levels;
· Estimates of annual levels of fishing mortality, expressed as ratio of current fishing mortality relative to the fishing
mortality required for the stock to produce maximum sustainable yield (F
> F ) ; and
CURRENT
MSY
· Estimates of biomass, expressed as a ratio of current biomass relative to the biomass that would produce
MSY(B
> B ).
CURRENT
MSY
Baselines for these indicators can be found in the project baseline study, as abstracted from OFP publications.
Measurable indicators for non-target and dependent species and threatened and protected species are not currently
available; with few formal assessments other those for billfish and some (blue) sharks, which are not updated annually.
Similarly, there is a paucity of indicators of ecosystem health, reduction in fishing mortality on non-target species and the
broader ecosystem.
Baseline Study
82
& Performance Indicators for the Pacific Islands Oceanic Fisheries Management Project (OFMP)

ATTACHMENT 4
t
or
p
addressed
u
p
d s
n
being
is
a
l
y
s
i
s a
n
processing
t
a A
updated six-monthly. National 41
data
Da
CES
Tuna Fisheries Statistics available
via secure country-specific pages
accessible via OFP website. The area
of
through the NZAID funded capacity
building project constraint. Data
summaries provided on an ad hoc
(request) basis.
A well developed national catch and
effort database, but is in need of
update.

g
l
i
n
e
s
p
y
.
s
s
u

Well-established
ountr
/
s
a
m
d i
n

low.

is
e
s a
e
c
t
i
on
m

fleet
n
s
p
a
m
t i
gr

seine
r
o
P
or
p
Port sampling: 56% Coverage in 2003
for the southern zone vessels operating
in the northern zone and unloading
in PagoPago covered by NMFS port
sampling staff and efforts are underway
to formalise cooperation between
NMFS and Cook Islands, for the
exchange of data.
Unloadings in the FSM ports are
covered by NORMA-administered
programmes (3 fulltime port samplers).
Coverage of locally-based longline
landings has been high, but there is no
coverage of landings by vessels based
in Guam. Coverage of the locally-based
purse
port sampling in major ports of
unloading. Landings data are collected
from unloadings by purse seiners and
longliners in FSM ports, via the port
sampling programme.
e
s
/
m
a
m
gr
v
est and management.
r
o
s
e
r
v
e
r p
e
s
oduction of data summaries and maps of fishing activities in c
b
elating to their har
O
i
s
s
u
Observer programme
established in 2000, achieving
very low coverage. Ideally, MMR
would like 20% coverage. Patrol
boat crew are being trained as
longline observers in increase
coverage. Lack of observers
(and port samplers) a major
constraint.
NORMA has nine trained
observers on staff who have
achieved 4 - 5% coverage of
purse seine and pole-and-
line trips in the EEZ, but low
coverage for longline trips.
Coverage of FSM Arrangement
purse seine vessels is close to
20%. NORMA maintains a target
level of 20% coverage of trips in
the EEZ (all gears combined).
ws the pr

is
.
e

100%.
c
es

to

fleet
esour
eanic fish stocks and issues r
o
v
e
r
ag

close

is

longline
CEL and MAPINFO and allo
w of oc
e
e
t c

fleet
vie
v
er
eanic fisheries r
gsh
e o
Lo
Level of logsheet coverage of the
longline
Logsheet coverage of the
locally-based
incomplete, and may only be
around 50%; current logsheet
coverage of purse seine, longline
and pole-and-line access vessels is
considered high (at least 80%).
es with MS EX
f
ac
ehensiv
ompr
e
r
i
e
s
i
sh
c
e
n
t
e
n
t
a
l F
y system, which inter
in 1997.
ssessment a c
uer
40
(October 2001).
o
s
t re
a
t
i
on
s
s
e
s
s
m
42
t Q
ssessment brief assessments of oc
M
N
A
NFA
NFA in 1991, recent
TFA
isheries A
isheries A
f
e
s
i
a
National F
C
atch and Effor
T
una F
ds
o
k
e
r
a
t
e
d
o
u
n
t
r
y
o
i
c
r
on
Baseline status for national monitoring and stock assessment activities
C
C
I
s
l
a
n
F
e
d
S
t
a
t
e
s o
M

40
41
42
Baseline Study
83
& Performance Indicators for the Pacific Islands Oceanic Fisheries Management Project (OFMP)

t
or

and
p
u
p

flag
d s
n

agreements,
a
l
y
s
i
s a
n

access
t
a A
Da
Well developed system of data
collection, verification and analysis
of catch and effort data. Capability
to log and generate data before
transmission to SPC for review.
Most data are collected using a well-
developed system, managed by a
national catch and effort database
system, but in need of an update.
Well-developed system for the
collection and analysis of catch and
effort data from all vessels licensed
under
locally-based foreign vessels.
g
l
i
n
e
s
p
s
s
u
/
s
a
m
d i
n
e
s a
e
c
t
i
on
m
n
s
p
a
m
t i
gr
r
o
P
or
p
Port samplers in Levuka and Suva (one
in each port). High levels of coverage
achieved.
Some training but sampling irregular.
Few port sampling data have been
collected to date.
Intermittent sampling: elements
of a port sampling programme,
but establishment of the observer
programme has been given priority.
y
.

e
s
/
m

is
a
m
ends in the fisher
gr

fleet

RMI-flagged
r
o
ent tr
ec

longline

vessels,
w of r
s
e
r
v
e
r p
e
s
e
vie
b
O
i
s
s
u
An onboard observer
programme aimed at the
domestic
in place, with approximate
observer coverage of 10%.
Around 20 observers trained
and employed on a contractual
basis, under the supervision
of an observer coordinator.
The current level of coverage,
especially in the longline fishery,
remains low.
Observer programme focusing
on the locally based foreign
longline
purse seine vessels, and FSM
Arrangement vessels, managed
by a full-time Observer and
Port Sampling Coordinator.
Coverage increasing to 5 - 10%
in the short term, and 15 - 20%
in the medium term.

be

to
c
es and detailed r

vessels

close

is
e
esour

for

100%),

waters

a

number

fleet

low

to

for
o
v
e
r
ag

considered

but

Kiribati

(close

seine

in

fleet

is
eanic fisheries r
e
e
t c

fleet,

high

purse

fleets

is
gsh

fishing

longline

RMI
Lo
Level of logsheet coverage is
around 80% for the domestic
longline
not licensed to fish in Fiji waters,
but use their port for unloading.
Level of logsheet coverage of the
purse seine and pole-and-line
fleets
whereas current longline logsheet
coverage is unknown for the main
fleet
(Korea).
There has been no activity by
RMI
of years. Logsheet coverage of
the
to 100%. Logsheet coverage of
foreign
between 50 - 80%.
t assessments of oc
43
e
r
i
e
s
i
sh
c
e
n
t
e
n
t
a
l F
o
s
t re
a
t
i
on
s
s
e
s
s
m
isheries Status Repor
M
N
A
NFA in 1994 (and in
2001); TFAs in 1996 and
1998. NTSFR in 2003
NFA in 1991; Interaction
Study in 1995. NTSFR
completed in 2003.
Results incorporated
in Kiribati Tuna
Management Plan.
NFA in 1997. NTFSR
completed in 2004.
una F
a
l
l
National T
a
t
i
ds
o
u
n
t
r
y
i
r
i
b
a
r
sh
C
F
i
j
i
K
M
I
s
l
a
n

43
Baseline Study
84
& Performance Indicators for the Pacific Islands Oceanic Fisheries Management Project (OFMP)

t
or
p
u
p
d s
n
a
l
y
s
i
s a
n
t
a A
Da
Basic tuna fishery data collection
system but no database.
Procedures for the collection and
processing of tuna fisheries data
developed for the monitoring of the
joint venture longline fishery. Niue
does not maintain its own catch and
effort database.
Well developed system of data
collection of catch and effort data,
but in need of an update. No
database system to process and store
tuna fishery data.
g
l
i
n
e
s
p
s
s
u
/
s
a
m
d i
n
e
s a
e
c
t
i
on
m
n
s
p
a
m
t i
gr
r
o
P
or
p
Port sampling training provided, but
currently no port sampling activity, as
there has been no transhipment for
some years.
No port sampling programme but the
plan is to develop a capacity to allow
20% coverage for vessels landing fish to
the new processing facility.
Active and effective port sampling
programme, now being entered directly
into the SPC database. High level
of coverage (close to 100%) of tuna
landings by the locally-based longline
fleet.

e
s
/

past,
m

the
a
m

in
gr
r
o

fleets

seine
s
e
r
v
e
r p
e
s
b

purse
O
i
s
s
u
Nauru has some trained
observers, and an observer fee
is levied in access agreements.
There has been some coverage
of
including USMLT vessels, but no
coverage of FSM Arrangement
vessels.
No observer programme but
some training has occurred.
Planning to develop one with
the assistance of SPC/OFP
and FFA in order to develop a
capacity to attain 20% coverage
of the new joint venture
longline fishery.
Some training, but no regular
observer programme/
placement in place. Interest
in re-establishing an observer
programme.

also
e

high

be

fleet

considered

is

to
o
v
e
r
ag

longline

fleets
e
e
t c

seine

considered
gsh

is

Japanese
Lo
Logsheet coverage of the foreign
purse
high (approaching 100%).
Catch and effort logsheets
from vessels fishing in Niue are
forwarded to SPC. Target logsheet
coverage is 100%.
Level of logsheet coverage
of the locally-based longline
fleet
(approaching 100%); coverage of
the
considered high.
e
r
i
e
s
i
sh
c
e
n
t
e
n
t
a
l F
o
s
t re
a
t
i
on
s
s
e
s
s
m
M
N
A
NFA in 2000.
NFA in 2000.
NFA in 1995, TFA (brief
update) in 1999.
e
o
u
n
t
r
y
a
u
ru
i
u
C
N
N
P
a
l
a
u
Baseline Study
85
& Performance Indicators for the Pacific Islands Oceanic Fisheries Management Project (OFMP)

t
or
p
u
p
d s
n
a
l
y
s
i
s a
n
t
a A
Da
Logsheet and landings data are
processed by NFA, with data entry
verification (quality control) provided
by SPC.
Well developed system of data
collection and analysis of catch and
effort data from longliners over 11
metres.
Hampered by recent civil unrest.
They have few staff to undertake the
work required. Needs assistance.
g
l
i
n
e
s
p
s
s
u
/
s
a
m
d i
n
e
s a
e
c
t
i
on
m
n
s
p
a
m
t i
gr
r
o
P
or
p
Around 15% of the purse seine catch
is sampled. Intend to increase port
sampling coverage of the foreign
vessels landing in Wewak and Rabaul.
Port sampling of the longline fishery
occurs at Port Moresby, Lae, and Rabaul.
A well-established and active port
sampling programme.
Since 2000, there has only been limited
port sampling in Honiara during the
2003/4 transhipment season.
e
s
/
m

a
m
gr

fleet.
r
o

longline
s
e
r
v
e
r p
e
s
b
O
i
s
s
u
There is a large observer
programme in PNG, which is
well supported and coordinated
by NFA. The programme as at
mid 2004 had around 50 active
observers, with a target of 80
by end 2005. Target coverage
of 20% for purse seiners, 5%
for longliners and 100% for
mothership operations are
reported as currently being
achieved.
No on-board observer
programme catering for the
domestic
Observer programme restarted
in 2001 and ceased in April
2004 due to funding and is
fully operational. 20% coverage
for domestic vessels has been
reached and exceeded, and
while the coverage of foreign
vessels is uncertain, DFMR
estimate that it is of the order of
5 - 10%. Aim to achieve 30% for
longline, 40% for pole-and-line,
and 100% for purse seine.

e

fleets,

fleet.
o
v
e
r
ag

pole-and-line
e
e
t c

fleet.

longline

and
gsh
Lo
Close to 100% coverage for purse
seiners and 70% for the domestic
longline
Small Alias do not provide
logsheets. Logsheet coverage for
the larger vessels is around 50%.
Levels of logsheet coverage of
the domestic longline, purse
seine
and foreign purse seine fishing
are relatively high, although there
are significant data gaps in the
coverage of all components of the
foreign
e
r
i
e
s
i
sh
c
e
n
t
e
n
t
a
l F
o
s
t re
a
t
i
on
s
s
e
s
s
m
M
N
A
NFA in 1993; (TFAs
- 1996 and Nov
1999) NTFSR in 2002.
(provided to assist TMP
revision).
TFA 2004.
NFA in 1992, with an
update (TFA) in 1999.
e
w
on
ua N
e
a
o
a
ds
o
u
n
t
r
y
u
i
n
C
P
a
p
G
S
a
m
S
o
l
om
I
s
l
a
n
Baseline Study
86
& Performance Indicators for the Pacific Islands Oceanic Fisheries Management Project (OFMP)

t
or
p
u
p
d s
n
a
l
y
s
i
s a
n
t
a A
Da
Intend to develop a system for
collection and analysis of fishery data
using recently established a statistics
section, which is planned to jointly
develop with fisheries personnel.
National catch and effort database,
established and data collected but
not processed. Data are sent to SPC
on an annual basis for processing.
Data are collected but not processed.
Data are sent to SPC on an annual
basis for processing.
Data are collected but not processed.
Some data are sent to SPC on an
annual basis for processing.

g
l
i
n
e
s
p

programme.
s
s
u
/
s
a
m
d i
n

sampling
e
s a
e
c
t
i
on
m

port
n
s
p
a
m

the
t i
gr

by
r
o
P
or
p
No port sampling.
Port sampling: there is a high level of
coverage (70 - 100%) of the longline
fleet
Landings data are collected via the
port sampling programme, although
coverage is less than 100%.
No port sampling due to almost total
absence of port calls and transhipment.
Around 50% of the limited
transhipments of from transhipments
are locally based foreign fishing vessels
sampled.
e
s
/
m
a
m
gr
r
o
s
e
r
v
e
r p
e
s
b
O
i
s
s
u
No observer programme.
Recently commencement of a
national observer programme
aimed at monitoring the
operations of the locally-
based foreign vessels. Level of
coverage is around 20 - 30%.
No observer programme, but
plan to commence one.
No observer programme other
than the occasional provision
of observers under US Treaty
arrangements.

now

their

for
e

and
o
v
e
r
ag

provided

improving

data
e
e
t c

fleet

No
gsh
Lo
No data provided. Understood
to be no commercial fisheries in
their waters.
Level of logsheet coverage of the
longline
considered high ( 80% - 90%).
Logsheet coverage approaches
100% for most purse seine
fleets.
artisanal fishery.
Limited logsheet and landings
data provided to the Vanuatu
Fisheries Department and level of
reporting currently unknown.
e
r
i
e
s
i
sh
c
e
n
t
e
n
t
a
l F
o
s
t re
a
t
i
on
s
s
e
s
s
m
M
N
A
NTFSR 2005.
NFA in 1997; NTSFR
2004.
NFA in 2001.
NFA in 2001.
t
u
ga
o
u
n
t
r
y
v
a
l
u
a
n
ua
C
T
o
k
e
l
a
u
T
on
T
u
V
Baseline Study
87
& Performance Indicators for the Pacific Islands Oceanic Fisheries Management Project (OFMP)

ATTACHMENT 5
National legislation and policies in OFMP Beneficiary Countries44
Country
Legal
Policy
Cook
Marine Resources Act, updated (2005) with powers to
In the initial stages of realigning its offshore
Islands
implement the Core Conservation and Management
fisheries management policy framework to
Principles and Measures required under the
be consistent with the WCPF convention and
Convention. International. Legal Division in place, but
updating it to provide a more effective basis
inadequate capacity to support drafting of additional
for the development and management locally-
legislation to meet all Convention requirements
based industry. Completion of a draft Tuna
and recently agreed (December 2004) Commission
Management Plan (imminent) will provide a key
measures. Legislation requires updating.
instrument of oceanic fisheries policy.
Federated
Chapter 24 of the Code of FSM Marine
Clear objectives of tuna management and
States of
Resources Act requires updating45 to enable the
development policy set out in the FSM Tuna
Micronesia
implementation of some WCPFC measures to meet
Management and Development Plan including
all Convention requirements and recently agreed
six specific goals for tuna fisheries management.
(December 2004) Commission measures. Substantial
legal capacity in its government legal offices (Attorney
General), however need assistance for major technical
initiatives in fisheries law.
Fiji
Fisheries Act 1942, last amended in 1992. Marine
Fiji Tuna Development and Management Plan
Species Act 1978. Requires new legislation.
in place, including strong polices aimed at
Needtoimproveflagstatecontrol,includingthe
management arrangements that maximise
establishmentofaprocesstoauthoriseFijianflagged
thebenefitsflowingtoFijians,andinthecase
vessels fishing on the high seas, and to better control
of licensing arrangements, indigenous Fijians.
FijiflaggedvesselsfishingintheEEZsofotherFFA
Need to review regional and national policy
states. No one legal specialist is assigned to fisheries
vision for future management arrangements
and assistance needed to support Commission
and approach at the Commission. Intended
participation and implement Commission decisions.
establishment of the Fiji Islands National
Fisheries Authority (FINFA) with expanded
OFM functions financed by new cost recovery
arrangement should assist in this regard.
Kiribati
The Kiribati Fisheries Ordinance makes provision
Policy goals not clear due to Fisheries
for the promotion and regulation of fishing and
Management Plan (developed 1999-2003) has
fisheries industries in Kiribati, whilst the Marine Zones
yet to be adopted. There is a need for capacity
(Declaration) Act 1983 deals with internal waters, the
building in fisheries management and policy
archipelagic waters, the territorial sea and the EEZ
making, particularly in areas related to the work
of Kiribati. The Fisheries Ordinance is not consistent
of the WCPF Commission to enable Kiribati to:
with the UN Fish Stocks Agreement and the WCPF
identify appropriate strategies and options,
Convention in many respects and new legislation is
participate effectively and build support among
required. Legal support for Commission participation
stakeholders for decisions of the Commission.
also needed.
44
The legal section of this table was based on information provided to the Secretariat by FFA Members. This information is not always up
to date. Other information is drawn from PDF-B study and interviews with FFA Staff. Not also that FFA has undertaken a comprehensive gap analysis
(relating to the commission/Convention) for all FFA members these should be referred to for additional detail relating to legal baselines.
45
Updating refers to the use of regulations to achieve compliance with Commission obligations, while new legislation infers that a new act
and regulations will be required for this purpose.
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Country
Legal
Policy
Marshall
The Marine Resources Act 1997 is still in effect and
RMI has a well-developed oceanic fisheries
Islands
the provisions of the Act are adequate to implement
policy/management framework but needs
conservation and international obligations under
further reform and strengthening to take
UNIA and the Convention. Requires updating
account of the development that has taken
tocoversomeobligations,includingflagstate
place, and to meet the additional responsibilities
responsibility, inspecting state obligations and port
associated with the WCPF Commission.
state enforcement measures Need to enhance
prosecution capability and support legislation for
recently agreed (December 2004) Commission
measures.
Nauru
Fisheries Act 1997. Appears to be capable of meeting
Major policy objectives of tuna management
most general obligations of the Convention, but
and development policy set out in the Nauru
check of compatibility of Act and Regulations with
Fisheries and Marine Resources Authority Act
Convention needed, and will require updating
(1997) and the Fisheries Act (1997). Policy in
to enable the implementation of some WCPFC
regard to approaches at the Commission and
measures. Legal advice and training in selected areas,
desired outcomes from measures not well
including in the area of regulations and licensing.
articulated. Assistance to support policy stances
at the Commission required.
Niue
Territorial Sea and Exclusive Economic Zone Act 1997.
Tuna Management and Development Plan
Includes sufficient powers to make regulations to
in place, but key policy decisions on oceanic
implement WCPF Commission decisions. However,
fisheries issues are made by Cabinet on the basis
Niue wishes to move away from access agreements
of ad hoc consultations with stakeholders in
towards more direct control of fishing vessels
the often with substantial advice from regional
through regulations and licence conditions. Requires
organizations. Need for assistance to strengthen
assistance with a review of existing/new legislation
its institutional capacity in oceanic fisheries
and drafting of regulations and licence conditions,
policy-making.
and to support Commission engagement and
support development of new measures in support of
Commission decisions.
Palau
Title 27, last amended in 2004. Unclear if existing
The major policy objectives of tuna
legislation is compatible with UNFSA and the
management and development are set out in
Convention. Requires new legislation. Legal support
the National Tuna Fishery Management Plan
required for Commission participation and to
(NTFMP) but the Plan is not implemented.
implement Commission decisions.
Urgent support needed for policy development,
particularly in areas related to the work of
the WCPF Commission to ensure that Palau's
interests are taken into account.
Papua New Fisheries Management Act 1998 general provisions
Well developed policy and management
Guinea
believed compatible with the requirements of
framework with clear policy towards domestic
the Convention, but that assistance with updated
industry development as articulated in the Tuna
legislation will be required in the medium term (2 - 3
Management Plan. Overall policy for Papua
years), Uniquely among FFA Island member states,
New Guinea's engagement at the Commission
PNG has a statutory management plan which, like the
requires development.
Act, may require support to assist with minor changes.
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Samoa
Fisheries Act 1988, last amended in 2002. There
Samoa has a well-developed oceanic fisheries
is a need to make sure that the legal provisions
policy framework but it needs further reform
can be interpreted by stakeholders, which could
to take account of the development that has
be done through national workshops. Support
taken place and to play a role in, and meet the
required to for Commission participation and to
additional responsibilities associated with the
Implement Commission decisions. Requires new
WCPF Commission. This will be assisted by the
legislation to ensure all the necessary provisions
proposed implementation of a new structure for
for implementation of the WCPF Convention, and
the Fisheries Division and support from FFA.
support for drafting of additional legislation recently
agreed (December 2004) Commission measures.
Solomon
Fisheries Act 1998. The Fisheries Act 1998 has
The oceanic fisheries policy framework in
Islands
notbeenrevisedtoreflectandimplementthe
Solomon Islands is in limbo, awaiting reviews
requirements of the WCPF Convention and assistance
of the Fisheries Act and Management Plan, and
is need to update legislation to enable this, and the
the financial resources and staff to give effect
implementation of recently agreed (December 2004)
to them. Considerable support for tuna fisheries
Commission. Support also needed to get full benefits
policy development will be required, and a
from Commission participation and to implement
donor funded (external to FFA) should assist in
Commission decisions.
this regard.
Tokelau
The Tokelau (Territorial Sea and EEZ) Act 1977
Draft management plan lays out key policies
and Tokelau (EEZ) Fishing Regulations 1988. No
and ambitious objectives for Tokelau's Oceanic
specific provision in the Tokelau legislation to meet
fisheries, including the exercise of competence
Convention and CMM requirements. Requires new
by Tokelau over the waters of its EEZ, which is
legislation.
the basis for Tokelau's participation in the new
Commission. Will be highly reliant on external
assistance to maintain engagement and
compliance with the Commission and agreed
measures.
Tonga
Fisheries Management Act 2002 includes the
A Tuna Management Plan is in place, consistent
necessary powers for implementation of the UN Fish
with the UN Fish Stocks Agreement, as the key
stocks Agreement and the WCPF Convention, and
instrument of oceanic fisheries policy. The
regulations are in the process of being promulgated.
Plan is to be reviewed, taking into account the
This will complete the immediate legal needs by
coming into force of the WCPF convention.
Tonga. However, the there will be a need to update
Major external (not FFA) intervention assisting
the Act to enable implementation of recently agreed
with tuna and WCPFC policy development.
(December 2004) Commission measures. Support
also needed to get full benefits from Commission
participation and to implement Commission
decisions.
Tuvalu
New Marine Resources Act drafted and is ready to be
Tuvalu does not have an effective oceanic
enacted by Parliament. The Act is fully compatible
fisheries management policy framework. There
with the requirements of WCPF Convention and
is, however, a strong intention to implement
is among the most up to date in the region. Likely
the national tuna management plan, once it
to require updating to enable implementation
has been reviewed and amended as necessary.
of recently agreed (December 2004) Commission
Will be highly reliant on external assistance to
measures. Support also needed to get full benefits
maintain engagement and compliance with the
from Commission participation and to implement
Commission and agreed measures.
Commission decisions.
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Vanuatu
Fisheries Act 2005 provides a good framework for
The major policy objectives of tuna
Vanuatu's participation in the WCPFC or other RFMOs
management and development policy are
to which Vanuatu has acceded. The new Act now
set out in the Republic of Vanuatu Tuna
coversVanuatu'ssubstantialflagstateresponsibilities.
Management Plan. The Plan includes polices on
Regulations will require updating over time to enable licensing, TAC setting and closed areas.
the implementation of WCPFC measures.
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ATTACHMENT 6
Baseline Status of Compliance in OFMP Beneficiary countries
Cook Islands
AnationalVMSisbeingestablishedanditisintendedthatallCookIslandsflaggedvesselswillneedto
be VMS compliant. One Pacific Patrol Boat (PPB). Good level of coordination between Fisheries (MMR)
and Maritime Division both in undertaking patrols (and VMS monitoring). Cooperation with US Navy,
French Navy, RNZAF and RAAF on aerial surveillance.
Federated
The Maritime Wing operates the regional VMS but lacks back-up capacity, especially if additional
States of
duties are anticipated in conjunction with a Commission VMS programme. Three PPBs are assisted
Micronesia
byregularsurveillanceflightsbyAustraliaandNewZealand,withsomeadhocsupportfortheUSCG.
Since 2002 and under a multilateral agreement under the Niue Treaty, FSM has participated in joint
surveillance (training and patrols) with its neighbours Palau, and the Marshall Islands. Intention to
expand these operations. Need for improve coordination between states. The locally-based longline
vessels may need to be subject to a wider range of compliance requirements e.g. VMS, and regional
registration.
Fiji
The FFA VMS facility is managed by the Naval Division. While it is operational regular technical
problems have been experienced. Three PPBs operated by Naval Division. Recognition of the
increasingmobilityoffishingfleetsandcollaborativecompliancearrangementswithVanuatuand
Tuvalu in place (not under the Niue Treaty). The capacity of Navy staff in relation to understanding and
implementation of fisheries-associated legal instruments requires strengthening.
Kiribati
The regional VMS is generally operational in Kiribati, with foreign vessels required to comply with
regional VMS requirements. There is also a national VMS system (Argos) providing coverage of Korean
longliners. Compliance activities are carried out by the Maritime Police within the Kiribati Police Force,
utilising one PPB (10 patrols p.a.). Extensive IUU fishing both within the three Kiribati EEZ components
and in adjacent high seas areas is suspected, and there is a desire to undertake increased surveillance
activity.Australia,NewZealand,USAandFranceprovidesomeaerialsurveillanceflightsunder
regional programmes. No current mechanism for the coordination of MCS activities. There are no
inspection programmes in place for transhipment and landings in Kiribati. This capacity may need to
be developed to meet Convention requirements.
Marshall
The FFA VMS is under the control of the Police and is operational, although there is limited capacity
Islands
within RMI to maintain and service VMS operations. Compliance activities are carried out by the Police
Sea Patrol Division, with assistance from MIMRA. One PPB and ongoing technical support from the
RAN. Sea Patrol operates one Australian-provided patrol vessel, the Lomor, with an annual target
of 120 days of seagoing patrols. Vessels are currently licensed annually by MIMRA. There is a good
database of vessel and gear characteristics. Surveillance of RMI vessels fishing outside RMI waters
is required and a formal process for authorisation of high seas operations needs to be developed,
Almost complete inspection of landings and transshipments, but unloadings data are not available.
RMI is involved in collaborative surveillance operations with its neighbours to the west- FSM and
Palau.
Nauru
The FFA Regional VMS appears not to be functional all of the time, and there is a need to develop
capacity in this area as a priority. MCS activities in general Nauru are limited. Apart from some aerial
surveillanceflightscarriedoutintermittentlybyAustraliaandNZaspartofregionalcoverage,little
else is in place, involving either the Police or NFMRA. There are ongoing discussions with adjacent
FSM, RMI and Kiribati concerning the possibility of utilizing their patrol vessels for surveillance in the
Nauru EEZ and adjacent waters. No transhipment and landing/offloading in Nauru and thus there are
no inspection programmes in place.
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Niue
VMS not fully operational and assistance required with the VMS system to ensure it is fully operational.
Niue's MCS capacity is limited due to resource constraints. There is no patrol boat in Niue and no
prospect of one. IUU fishing in Niue waters is an issue because Niue does not have its own sea or air
patrolcapacity.Itis,howeverassistedbyoverflightpatrolsbyNewZealandandtheUnitedStates.
Niue sees regional cooperation in MCS as important, and has authorised Fiji and New Zealand Navy's
to undertake MCS operations in Niuean waters; this initiative is likely to expand.
Palau
The FFA regional VMS, hosted by the LED, while operational, appears to be utilized at less than full
capacity. There is no national MCS Committee which would seek to improve coordination of MCS
activities between BOFM and other agencies. Some capacity to enforce its fisheries laws, using one
PPB. Suspected very high incidence of IUU fishing within the zone and probably also in adjacent high
seas areas accessed by Indonesian and Philippines vessels, Surveillance is also assisted by occasional
surveillanceflightsbyAustraliaandNewZealand.Therearenoinspectionprogrammesinplacefor
landings in Palau, although there is port sampling Customs and MLED cooperate in in-port vessel
inspections and clearances.
Papua New
The FFA VMS facility is located with the NFA and is operational at around 80% efficiency. PNG also
Guinea
manages its own domestic VMS. PNG also operates its own national VMS Compliance, monitoring,
licensing and enforcement activities are carried out by the NFA, in a unique collaboration with
the naval arm (Marine Element) of the PNGDF and Royal PNG Police. PNG has four PPBs that are
currently underutilised. Efforts under way to improve links between NFA and the Navy to improve
dataandinformationflow.NFAhasitsownenforcementsection,dealingprimarilywithcompliance
with licence conditions and cooperating with the Navy during surveillance operations. Expanded
subregional cooperation in surveillance (currently with Palau and Marshall Islands and FSM) is
considered important to PNG. Considerable cooperation in surveillance and enforcement with
Australia.
Samoa
The FFA VMS is under the control of the Police and is operational Compliance activities are carried
out by the new Regulations and Enforcement Section of the Fisheries Division and the Maritime
Police Wing, which operates one PPB, assisted by periodic air patrols by New Zealand. There is
almost complete inspection of landings. There is not considered to be any systematic problem
with IUU fishing in Samoan waters. Samoa is interested in collaborative surveillance operations with
neighbours including Cook Islands.
Solomon
The FFA VMS facility is managed and operated by the DFMR, with a DRS being available to Royal
Islands
Solomon Island Maritime Police. The consistency of application to foreign fishing vessels requiring
a licence is uncertain. Compliance activities are carried out by the Solomon Islands Police (Maritime
Division) that operates two PPBs in collaboration with DFMR. DFMR observers carry out compliance
and monitoring activities. Lack of capacity and other priorities related to land-based police activities
are constraining operations. While there is no collaborative compliance arrangement in place, there
is an intention to explore this, probably under Niue Treaty arrangements. Overall there are substantial
challenges facing Solomon Islands in meeting the compliance responsibilities under the Convention.
Tokelau
Tokelau is installing the FFA VMS and is looking to arrange some sea patrol operations through
arrangements under the Niue Treaty. Tokelau has no dedicated compliance operations, and has
depended in the past on regional instruments such as the FFA Regional Register, and on ad hoc
activities and information from inter-island vessels, supplemented by air patrols by New Zealand
aircraft.
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Tonga
The start-up of the FFA Regional VMS has occurred, as well as the establishment of new national VMS,
and a new VMS section within the Access & Compliance Division financed by a new cost recovery
scheme, substantial progress has been made in strengthening compliance activities, as part of an
institutional strengthening programme, including the establishment of a National MCS Coordinating
Committee. Tonga has a strong capacity to enforce its fisheries laws, using 3 PPBs and a patrol aircraft
operatedbytheTongaDefenceServices.ItisalsoassistedbyregularsurveillanceflightsbyAustralia,
France and New Zealand (more regularly), and Germany has also recently indicated that it will provide
airsurveillanceflights.Thereareinspectionprogrammesinplacefortranshipmentandlandingsin
Tonga. Further training of inspectors is important.
Tuvalu
The Fisheries Information and Licensing Unit of the Fisheries Department manages the FFA VMS.
Compliance activities within the MNRL are the responsibility of the Fisheries Information and
Licensing of the Fisheries Department. The Police Maritime Wing operates one PPB, which, in
common with other PacSIDS is severely funds-limited. Coordination between Police and MNRL is
excellent. Tuvalu, Kiribati, Nauru, and possibly the Marshall Islands, are in the process of forming a sub-
regional group to deal with matters of common interest in tuna fisheries including MCS.
Vanuatu
The hardware for the FFA VMS system is housed at the Joint Police Operation Centre and is
operated by the Police Maritime Wing. Training and operational difficulties have occurred; efforts
are being made to better coordination of operations between Fisheries and the Maritime Wing.
Compliance activities in Vanuatu are handled by the Compliance and Licensing Section of Fisheries,
in collaboration with the Police Maritime Wing. The Police Maritime Wing operates one PPB. Currently,
with only two surveillance officers, Fisheries are unable to place staff on the Patrol Boat. This surface
activity is supported by aerial surveillance by New Zealand, Australia and France, and surface
patrols by the French Navy. A Maritime Surveillance Planning Group is scheduled to meet monthly
to coordinate surveillance activities between responsible authorities. Cooperative surveillance
agreements with Fiji, Solomon Islands and New Caledonia are being considered. Vanuatu also
operatesaNationalVMSsystem,contractedtoTunaFishing(Vanuatu)Ltd,tomonitorVanuatuflag
vessels operating throughout the world. Data downloaded are passed to the relevant RFMOs as part
of the reporting and monitoring process.
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ATTACHMENT 7
Socio-economic indicators
FFA members have also expressed a desire to be better informed about the economic and social benefits
arising from the development of their tuna fisheries; Outcome 3 of the FFA Strategic Plan 2005-2020
(Tuna fisheries are developed to maximise social and economic benefits to members) has the following
performance indicator - `specified social and economic benefits are effectively measured and achieved'. A
number of initiatives to develop economic indicators were underway in 2005.
Socioeconomic indicators are required to report against Environmental Status Outcomes under the GEF
reporting framework.
van Santen, 2005 in considering an appropriate set of economic indicators for the tuna fisheries suggests
the following:
a)
access Fees for longliners and purse seiners;
b)
exports (fresh and frozen);
c)
annual aid commitment by DWFNs;
d)
employment on shore and on vessels;
e)
CPUE by gear type and target species;
f)
total value of catch;
g)
percentageoftotaltunafleetregisteredinFFAmembercountries;
h)
fuel costs/catch value ratio for longliners and purse seiners;
i)
CPUE Ratio inside and Outside EEZ: longliners; and
j)
CPUE Ratio inside EEZ and Indian Ocean: purse seiners.
Indicators e - j are concerned with monitoring the `economic health' of various fishing operations.
In considering baselines van Santen, drew on a number of reports by Gillett and others ( including Gillett, R.
and C. Lightfoot 2001 and Gillett, R. 2003) which had been commissioned by FFA and came to the following
conclusion:
As these data appear to have been collected with particular care, it would be desirable to use them as baseline
data, despite their relative age, and compare data from future years initially with these data. Baseline data for
CPUE, Total Value of Catch and Fuel cost are available from 2002 and 2005.
The FFA Secretariat in giving effect to the Strategic Plan, was tasked by the FFC to prepare a limited number
of economic indicators, that would illustrate in a simple, concise and brief document annual changes in
the impact of the tuna industry on PIC economies. A paper to FFC 61 (FFA 2006) reports on a range of data
that had been collected using the van Santen report recommended indices as a guide. These were:
a)
Delivered value46(purseseineandlongline,byflagandEEZ);
b)
Revenue per day (purse seine vessels, based heavily on fuel prices and estimated fuel usage);
c)
Access fees; and
d)
Exports (based on Japanese and US import data).
46
the value of the catch at the point at which it is unloaded at its final market destination whether it is delivered by the fishing vessel or tran-
shipped
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Data on employment was not included in this report.
After FFA 61, The FFA Secretariat received informal feedback from a number of sources and further refined
its identification of areas for which additional or improved data collection and analysis is required. A further
study on economic indicators was commissioned in 2007 (Econsearch, 2007). The Econsearch report
reviewed the indicators in the FFC report and recommended a number of additional indicators, grouping
them into three sections:

i) financial indicators
· Productprices
· Operatingcosts
· Vesselprofitability

ii) fishery indicators
· Grossvalueofproduction
· Economicrent
· Accessfees
· Costofmanagement
· Numberofconcessionholders/numberofvessels
· Strengthofpropertyrights

iii) community indicators
· Employmentdirectandindirect
· Provisionofservicestothetunafishingindustry
· Contributionofthefisherytogrossdomesticproduct
· Exports
· Domesticlicencefees
· Taxationandotherrevenuescollectedfromthefishingindustry
Socio-economic indicators for the OFMP
Oceanic (tuna) fisheries offer one of the few development opportunities for PacSIDs. These opportunities
in turn are clearly linked to effective management measures that maintain stocks of target and by-product
species at levels that allow profitable fisheries. This is especially the case for some relatively high-cost
domestically based fisheries. As such, indicators that measure the social and economic benefits arising
from fisheries in the waters of PacSIDs, and particularly those arising as a result of improved management
decisions on transboundary oceanic fisheries resources, are important.
Economic data/indicators should be selected from the available categories of data which best demonstrate
improvements in the status of oceanic fisheries resources and the protection of biodiversity in the WTP LME
from improved management arrangements.
Most management measures are about constraining fishing effort/catches and, though cooperative,
transboundary management, seek to achieve some form of optimal level of fishing/catch that balances
social, economic and, most significantly, environmental (sustainability) objectives. In this context three types
of indicator would be useful:
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i
Value of access. The successful implementation of the Vessel Days Scheme through cooperative
management should increase the value of fishing opportunities substantially, especially as trading of
Vessel Days commences. Access fees are a similar, coarser-scale indicator;
ii
Catch value. Similarly, through restricting catches in a market that is highly sensitive to supply
(canning-based operations), prices are likely to be higher than would be the case where greater
access and catch is permitted. Previous successful efforts by DWFNs to restrict the supply of purse
seine-caught skipjack have demonstrated this; and
iii
Optimal management outcomes. Finally, in the case of multi-gear, multi-species fisheries, the trade-
off between management options by the Commission or FFA country groupings (e.g. PNA) needs
to be carefully considered in terms of optimal economic, social and environmental outcomes and
consideration of `winners and losers'. Again, some indicators of how management measures are
performing towards achieving desired outcomes are necessary. FFA has previously undertaken
studies showing the differential impacts of transboundary management decisions.
Deriving baselines for these indicators is not possible at present but as FFA's efforts to develop ongoing
monitoring continue, they should become available during the life of the project, as indicated in the 2007
OFMP PPR.
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