GEF II PROJECT:
NATIONAL PROJECT PREPARATION REPORTS
KIRIBATI
Foreword
This brief report was prepared by Dr. Tony Lewis and Esaroma Ledua during a visit to
Kiribati from 28th May to 2nd June 2004. It aims to assemble information relating to Kiribati
necessary for the preparation of the GEF SAP II Project.
The main aims of the report are:
· To make an assessment of the implications of the WCPF Convention for Kiribati
· To identify possible interventions to support implementation by Kiribati of the WCPF
Convention
· To make an analysis of the incremental costs to Kiribati of activities related to the
Convention
· To undertake an analysis of stakeholders in Kiribati with interests in the regional
oceanic fisheries resources
· To identify relevant consultative mechanisms in Kiribati for the GEF SAP II Project
· To collect information relating to available indicators of performance in areas related
to the WCPF Convention and to the financial sustainability of Kiribati's participation
in the Commission and implementation of the WCPF Convention
The report is based on available published information and information provided in the
consultations with stakeholders listed in Annex 3.
1.
Background
1.1
Status of Oceanic Fisheries
The three components1 of the Kiribati EEZ, 3.55 million km2 in extent and separated by high
sea areas, support very large tuna catches by foreign vessels fishing under access agreements.
Most of the catch is taken by purse seine vessels, this catch reaching a record 331,000t in
2002 (over 30% of the regional catch), and averaging over 160,000t per year in recent years.
There are large catches by longline vessels (7,000 10,000t), mostly in the Line Islands, and
smaller catches by pole-and-line vessels. Some of the purse seine catch (and smaller amounts
of the longline catch) is transhipped in Betio and Kiritimati. Catches by surface fisheries are
strongly influenced by ENSO events, with very high catches in El Nino years.
Artisanal tuna catches are large and vital to food security on most islands. Domestic industry
development has been constrained by logistical problems such as lack of water and high
operational and transport costs. A single Kiribati-flag purse seiner operates under joint
venture conditions throughout the region, and medium scale longlining is being encouraged,
initially in Kiritimati Island. Some small scale processing of tuna occurs, and Kiribati
provides significant numbers of trained seamen to foreign fishing vessels as well as merchant
fleets.
1.2
Oceanic Fisheries Management
The purpose of the Kiribati Tuna Development and Management Plan, developed during
1999-2003, was to :
1 33 islands in three groups Gilberts (Tungaru) Group, Phoenix Group and Line Islands, stretching
from 1790 E to 1500 W, and 50 N to 110 S.
1
"develop a sustainable tuna industry that maximises the benefits to all I-Kiribati, and
ensures effective participation by Kiribati in arrangements for the management and
conservation of regional tuna resources"
As noted by the Permanent Secretary in a forward to the Plan, "At present, fishing fees
account for more than 50% of annual government revenues2, and the fishery contributes
approximately 22% to the GDP. Kiribati intends to place its revenue earnings on a firmer
footing through the development of a strong tuna industry". The Plan has yet to be formally
adopted after tabling in 2003.
Access agreements involving all distant water fishing nations active in the region or their
fishing associations (over 20 fishing agreements in 2003, and 447 licences) are currently in
place, these bringing over A$40 million in access fees in most years. Under the conditions of
access, commercial vessels are excluded from areas within 60 nm around the three main
islands of Kiribati (Tarawa, Kanton, Kirimati). There are essentially no other restrictions on
fishing at present.
1.3 Oceanic Fisheries Institutional Arrangements
The Ministry of Fisheries and Marine Resources Development (MFMRD), established in
2003, is the primary agency responsible for oceanic fisheries management, with secondary
involvement by the Ministries of Foreign Affairs, Ministry Environment, Lands and
Agriculture Development (MELAD), Finance and Economic Planning, the Attorney
Generals' Office, and the Kiribati Police.
MFRMD currently has a staff of 90, and an annual operating budget of around A$ 1.9
million. Within the Ministry, there are two Divisions, Offshore and Inshore Development,
and 8 functional units, with responsibilities for oceanic fisheries primarily addressed by the
Fisheries Licensing and Enforcement Unit (FLEU).
The FLEU secures fisheries access agreements with foreign partners, promotes employment
opportunities on foreign fishing vessels, cooperates in monitoring, control and surveillance of
our EEZ at regional and national level, maintains the fisheries database management
information system, simply known as FMIS, carries out observer placements on foreign
vessels to carry out scientific data collection on catches and gear technology, and port
sampling work to verify catches made by fishing vessels, and dissemination of information
(budget $115,000, staff of 7).
Other units include Marine Research, Resource Assessment and Monitoring Unit (MRRAM),
Fisheries Extension Training and Information (FETI), plus Aquaculture and Development
(FAD), Fisheries Hatcheries and Invertebrate Culture (FHIC), Fisheries Subdivision Office
(FSDO), Support Services and Research Vessel Operations.
Overall, oceanic fisheries management is a major focus of the work of the Ministry, an
indication of the importance of tuna fisheries to Kiribati. An estimated 20 % of Ministry
effort and resources is devoted to oceanic fisheries.
Other government agencies involved in oceanic fisheries are:
· Environment, Lands and Agriculture Development
· Maritime Police (within the Kiribati Police Force, in the Office of the President)
· Foreign Affairs and Immigration
· Ports Authority
· Finance and Economic Planning (including Customs)
· Attorney General's Office
2 68% in 2001
2
· Kiribati Development Bank
A Special Tuna Task Force (STTF) was formed by Cabinet in 1999, to promote the
development of the tuna industry in Kiribati, and to develop the Tuna Development and
Management Plan (TDMP).
Under the Plan, consultation with stakeholders will be undertaken through a Management
Advisory Committee (MAC) reporting to, and providing the Minister of MFMRD with, advice
on wider sector of issues represented by all stakeholders in the industry. Currently however,
the long standing STFF serves as the only consultative forum.
Establishment of a Fisheries Licensing and Law Enforcement Authority (FLLEA) is also
proposed under the Tuna Management and Development Plan, strengthening of the capacity
of the Ministry for data analysis, ownership and planning, and the clarification of the roles
and responsibilities of the Authority vis à vis the Ministry and the Fisheries Department.
1.4
Other Oceanic Fisheries Management Issues
Other oceanic fisheries management issues which have been articulated in Kiribati include:
Revision of National Legislation - The Fisheries Ordinance and other relevant Kiribati
laws will need to be revised to include provisions necessary for the effective
application of the UN Law of Sea Convention and the WCPF Convention; to
establish the Fisheries Licensing and Law Enforcement Authority and the MAC, and
to make any other changes identified as necessary to improve the legal framework for
fisheries management;
Participation in International Fisheries Arrangements through accession to UNFSA
and ratification of the WCPF Convention to provide a legal platform for involvement
by Kiribati in appropriate international fisheries arrangements. Kiribati will also
continue to support regional arrangements for collaboration in tuna fisheries
management and development;
Social Impact Mitigation Measures: An effective system of control on access to
foreign vessels in port will be put in place aimed at stopping prostitution and reducing
the effect of dumping of discarded fish from foreign vessels on to the local market;
Conservation and Management: Establishment of the new Authority to secure
additional resources to develop, put in place, monitor, and police measures to
conserve tuna stocks and protect the interests of groups, such as the small-scale
fishers.
2.
Kiribati and the WCPF Convention
2.1
Overview
With a tuna industry based on foreign fishery access, but with aspirations to develop a
domestic industry, Kiribati's primary aims in the MHLC and Prep Con process have been:
i)
to ensure that Kiribati secures at least a fair share of access to the region's tuna
resources
ii)
to ensure the application of measures to ensure the sustainability of the region's tuna
stocks and fisheries. Key elements of this for Kiribati have been:
· implementing controls on the impact of purse seine fishing on juvenile bigeye
and yellowfin because of the effects this could have on catches by Kiribati's
longline fleets fishing in Kiribati waters; and
· ensuring the long term sustainability of the purse seine fishery targeting skipjack,
but with important catches of yellowfin and, to a lesser extent, bigeye
3
iii)
to ensure the sustainability of Kiribati's artisanal tuna fisheries so important to
domestic food security
As a Member of the Commission and a Party to the WCPF Convention, four major short
term implications for Kiribati are seen as follows:
i)
the need for legal reforms, which are discussed below:
ii)
strengthened arrangements for management of fishing within Kiribati waters,
particularly enhanced monitoring and data analytical capability, establishing limits to
fishing and efforts to address IUU fishing;
iii)
more effective national consultative mechanisms
iv)
participation in the processes related to the Commission, including involvement of
non-government organisations.
Kiribati has the capacity now to implement legally decisions adopted by the Commission, but
in the longer term, may need to strengthen its fisheries management capacity to apply the
more sophisticated management measures which may be necessary in the future.
2.2
Implications of the Convention
2.2.1
Legal
The Kiribati Fisheries Ordinance makes provision for the promotion and regulation of fishing
and fisheries industries in Kiribati, whilst the Marine Zones (Declaration) Act 1983 makes
provision in respect of the internal waters, the archipelagic waters, the territorial sea and the
EEZ of Kiribati. The Fisheries Ordinance is not consistent with the UN Fish Stocks
Agreement and the WCPF Convention in many respects. This is largely because the
Ordinance has not been updated since 1992. It has been suggested that it be repealed and
replaced with more comprehensive fisheries management legislation.
Instrument
Status
WCPF Convention
Ratified
UN Convention on the Law of the Sea
Ratified (despite archipelagic waters
reservations)
UN Fish Stocks Agreement
Ratified
FAO Code of Conduct
Not reflected in legislation
WSSD fisheries targets
No
Convention on Biological Diversity
?
FAO Compliance Agreement
?
FAO International Plans of Action
Not reporting
FFA Minimum Terms & Conditions
Ratified ?
Driftnet Convention
Ratified ?
2.2.2
Policy/Institutional
A major programme of reform and strengthening has been proposed for the Kiribati fisheries
administration, including the establishment of a Fisheries Licensing and Law Enforcement
4
Authority (FLLEA), focussing on all enforcement and MCS activities, along with
reorganization of the Fisheries Division. This has yet to be implemented.
Similarly, the Tuna Development and Management Plan, developed during 1999-2003, has
yet to be implemented. The STTF continues to remain the primary (and only) consultative
mechanism for tuna issues in Kiribati
These legal reforms need be completed and the TDMP implemented, before Kiribati
Government can fully implement the WCPF Convention and decisions of the WCPF
Commission. There will be a continuing need for capacity building in fisheries management
and policy making, particularly in areas related to the work of the WCPF Commission to
enable Kiribati to:
a) Identify appropriate strategies and options for oceanic fisheries management in
Kiribati waters
b) ensure that Kiribati participates effectively in the work of the Commission, including
being able to ensure that Kiribati's interests are taken into account in this work; and
c) build support among stakeholders for the effective implementation of decisions of the
Commission
The cost of financial contributions for Kiribati to the WCPF Commission is expected to be in
the range of US$10,600 per year once the Commission is fully established, although it may be
more in the first year or two if major fishing states delay becoming Members of the
Commission.
2.2.3
.Compliance
Compliance activities are carried out by the Maritime Police within the Kiribati Police Force.
Kiribati has one patrol vessel (RKS Teanoai), supplied under the Australian Pacific Island
Patrol Boat Programme, which attempts to deliver 10 seagoing patrols throughout the very
extensive zone annually, but is constrained by limited operational funding. 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 in these areas.
Australia, New Zealand and France provide some aerial surveillance flights under regional
programmes.
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.
There is no mechanism currently for the coordination of MCS activities but there has been a
National Surveillance Coordination Committee in the past; this possible may need to be
reactivated
There are no inspection programmes in place for transhipment and landings in Kiribati.This
capacity may need to be developed, to meet Convention requirements.
Flag State Responsibilities
A new responsibility for Kiribati under the Convention will be the need to regulate fishing by
Kiribati vessels outside Kiribati waters. One Kiribati vessel fishes outside Kiribati waters, but
control over this vessel is currently not formally exercised in the form of an authority to fish..
There are no arrangements for monitoring landings by the Kiribati vessel outside Kiribati,
2.2.4
Monitoring
Kiribati is developing capacity to monitor the very large catches taken in its zone by foreign
vessels through its own efforts, supplemented by assistance from SPC/OFP and from FFA.
Features of fishery monitoring in Kiribati are:
5
Logsheets: All foreign and domestic licensed vessels are required to provide catch and effort
information at the operational level on regional logsheets. The level of logsheet coverage of
the purse seine and pole-and-line fleets is high (close to 100%), whereas current longline
logsheet coverage is unknown for the main fleet fishing in Kiribati waters (Korea).
Port sampling: Few port sampling data have been collected to date.
Landings: Catch transhipment data are believed to be available, as transhipments are tallied.
Landings data are also collected for the artisanal tuna fishery.
Observers: Around 20 observers are now 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.
Kiribati is gearing up to meet expanded monitoring requirements under the WCPF
Convention. The major assistance needed will be for continuing training for observers, port
samplers and statistical staff. It is not viable for Kiribati to establish its own training
programmes for the small numbers involved, and Kiribati sees itself continuing to rely on the
regional organisations for this function.
2.2.5
Scientific Analysis
Kiribati will continue to rely on SPC for stock assessment analysis and related advice but also
wants to develop its own capacity to interpret and apply the regional results and to be able to
interpret data from national monitoring programmes. As Kiribati tuna fisheries are
significantly impacted by large-scale oceanographic (ENSO) events, it would like to see
forecasting capability developed (in-country of possible) and see research into these
phenomena and their fishery impacts continued
There is a well developed national catch and effort database, competently maintained, but
assistance will be needed to produce the verified estimates of annual catch by species, gear
and fleet for Kiribati waters expected to be required to meet the data standards established by
the Commission. An upgrade of the existing database will probably be needed.
3.
Potential Contribution of SAP II Project
Potential areas in which the SAP II Project could contribute to assisting Tonga in the
implementation of national activities related to the WCPF Convention are summarised in the
table below.
Activity
Incremental Actions
Possible Interventions
Legal
Revise Legal framework
Repeal and replace Ordinance
Assistance with legal drafting
Support Commission
Provide legal advice
Regional Legal Workshops on
participation
selected issues
Policy
Participate in regional
Commission financial contributions
Regional Fisheries Management
policy formulation
Commission meeting participation
Training/Consultations
Attachments
Compliance
Increase IUU deterrence
Improve effectiveness of patrol,
Regional MCS Working Group
in-zone
inspection, investigation, prosecution
participation
In-country inspection, VMS staff
training
Ensure flag vessel
New authorisation process; inform
Regional training on flag state
control and compliance
Commission
responsibilities
6
Monitoring
Improve at-sea data
Expand Observers
Ongoing in-country training of
and observers by FFA/SPC
Improve catch
Expand Port sampling and
Ongoing in-country training of
composition data
monitoring of landings
port samplers by SPC
Provide data to the
Develop means of verifying catch
Technical support from SPC
Commission
and other data
Interpretation of regional
Training opportunities provided
Science
assessments and oceanographic data
Tertiary training in fisheries science
Develop relevant training courses
at regional institute(s).
ANNEXES
Annex 1
Incremental Cost/Co-financing Analysis
Annex 2
Stakeholder Inventory and Analysis (including consultative mechanism
inventory)
Annex 3
Record of Stakeholder Consultation
Annex 4
Indicator Availability
Annex 5
Sustainability Analysis
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Annex 1 Incremental Cost/Co-financing Analysis
Summary
National Funding
Total 2005-2009
Theme
Total 2005-2009
Baseline
Incremental
(US$ 000)
1 Law
?
100
2 Policy/Management
425+
250
3 Compliance
1950
150
4 Monitoring
225
100
5 Science
25
50
Total
4240+
650
Kiribati with a large catch by foreign vessels in its extensive EEZ, is committed to improving
its monitoring capacity, developing and applying management measures at national level, and
participating fully on the work of the Commission.
Co-financing cost estimates based on:
Law: Legislative review and reform
Policy/management: Participation in Commission activities, annual contribution, institutional
strengthening
Compliance: Increased surveillance, MCS coordination, inspection programme establishment
Monitoring: Expanded observer and port sampling coverage and transhipment data
Science: Database upgrade
Donor Funding (US$ 000)
Total 2005-2009
Total 2005-2009
Theme
Donor
Project
Baseline
Incremental
Compliance
RAN
Maritime Surveillance
advisors
8
Base Data
2004
2004
Institution
Programme
Theme
%OFM
OFM
Budget
Budget
MFMRD
Administration
Policy/Mgmt
700
10%
70
ForAff
Policy/Mgmt
?
10%
?
MELAD
Env/Conservation Policy (Env)
350
5%
20
MFMRD
Monitoring
and
FLEU
60
100%
60
licensing
MFMRD
FLEU
Port sample/obs
50
100%
50
FLEU
Stats
5
100%
5
Justice
AG
Law
?
5%
?
Police
Maritime Police
Compliance
400
100%
400
Total
1565 +
605+
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Annex 1 Incremental Cost / Co-financing analysis
Details
2004
2004
2004 WCPF
2005-2009
Total
Theme
Institution
Programme
OFM
Non-WCPF
New WCPF Increment
Increment
Baseline
Incr
budget
Baseline
2005 2006 2007 2008 2009 Total
1 Law
AG
Law
?
5
?
10
10
10
10
10
50
75
2 Policy/Mgmt* MFMRD
Admin
70
5
65
325
30
30
30
30
30
150
175
ForAff
?
5
?
?
5
5
5
5
5
25
50
MELAD
Env and Conserv
20
0
20
100
5
5
5
5
5
25
25
3 Compliance MRMRD
Compliance
60
5
55
275
15
15
15
15
15
75
100
Police Force Maritime Police
400
10
390
1950
20
20
20
20
20
100
150
Port
4 Monitoring MFMRD
50
5
45
225
15
15
15
15
15
75
100
sampling/observers
5 Science
MFMRD
Stats
5
0
5
25
10
10
10
10
10
50
50
?
25
?
?
* includes Commission contribution for 2005-2009 (US$ 10,600)
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Annex 2 Stakeholder Inventory and Analysis
Country:
KIRIBATI
Date:
28/5/2004
Data recorder: Esaroma Ledua/Tony Lewis
GEF Focal point: Karibaiti Taoaba, Permanent Secretary, Ministry of Environment & Social Development, P.O. Box 234,Bikenibeu, Tarawa, Kiribati
PHONE: (686) 28211/28000, FAX : (686) 28334/28593, E-mail: mesd@tskl.net.ki
Stakeholder
Representative/post
Contact details
Description of interests
Stakeholder
analyisis
and
preliminary
participation data
1 stakeholder 2 stakeholder 3 stakeholder
Ministry of Fisheries
David Yeeting,
P.O. Box 64, Bairiki,
and Marine
Secretary
Tarawa
Resource
Raimon Taake,
raimon@mfmrd.gov.ki
Development
Deputy Secretary
Jonny Kirata, Deputy
jonnyk@fisheries.gov.ki
Director
Raikaon Tumoa,
Senior Fisheries
Officer
Kiribati Marine
John Mote, Officer
policemaritime@tskl.net.kr
Police
Commanding
Ministry of Foreign
Peniita Kabubuke,
mfai@ tskl.net.kr
Affairs
Asia Pacific Officer
Ministry of
Betarim Rimon,
Environment, Lands
Senior Project
and Agriculture
Officer
Development
(MELAD)
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Attorneys General's
Tion Nalua, Legal
Office
Officer
Central Pacific
Barerei Onorio,
cppkiri@tskl.net.i
Producers
General Manager
Teikabuti Fishing
Mike Savins,
P.O. Box 241, Bikinibeu,
Managing Director
Tarawa.
teikabuti@tskl.net.ki
Betio Fishermen's
betiofishing@yahoo.com
Association
KFSP
Mike Fudakowski,
fsp@tskl.net.ki
Environmental initiatives,
Director
NGO capacity building
Ministry of Finance
and Economic
Planning
Ports Authority
Kiribati
Development Bank
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Annex 3 Record of Stakeholder Consultation
GEF SAP II Country Mission
Republic of Kiribati
Friday 30th May and Monday 30th May, 2004
Stakeholder Consultation
The Mission held a primary stakeholders consultation at the Ministry of Fisheries and Marine
Resources Development, Bairiki, to discuss the development of the SAP II project. Those
present were: Raimon Taake, Deputy Secretary, Fisheries; Betarim Rimon, Ministry of
Environment, Lands and Agriculture Development (MELAD); John Mote, Maritime Police;
Peniita Kabubuke, Foreign Affairs; Tion Nalau, Attorney General's Office; Barerei Onorio,
Central Pacific Producers; Raikaon Tumoa and Jonny Kirata, Ministry of Fisheries.
The consultation combined a detailed presentation on GEF processes and project background,
with a general awareness presentation about the Convention, current tuna fishery management
in the WCPO, and implications of the Convention for Kiribati, then a detailed needs
assessment for Kiribati.
Issues raised during the primary stakeholders'consultation included:
Status of the Management and Development Plan and institutional arrangements
Mechanisms for stakeholder consultation
Status of domestic industry development
A public consultation was then held on Monday 30th May at 1400 hrs in the Otinta'ai Hotel,
Bikinibeu, and was attended by the same participants as the previous meeting, plus FFA staff.
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Annex 4 Availability of National Indicators
Current Value, if easily
Indicator
Availability
available
1. Coverage of:
a) catch and effort logsheets: locally-based
Around 100%
fleet
b) catch and effort logsheets: foreign access fleet
High
c) port sampling
~ 100%
d) observers: domestic fleet
Nil (previous programmes)
2. Levels of budgets and staffing for these
programmes
3. Levels of fleet capacity and fishing effort
4. Catch of target species,
5. Levels of mortality of related species,
including bycatch and seabirds
Note: this analysis does not include a range of national indicators which are known to be
available for all countries such as status of legislation, undertaking of national reforms etc.
Annex V - Sustainability Analysis
Annual Government Revenue from licensing, access fees, export taxes,
USMLT and FSM Arrangement fees :
US $ 1.3 million
(2003)
Annual In-Zone Catch Value: US$ 14 million plus artisanal, sport
Annual Domestic Catch Value: not known
(Data above to be estimated by FFA)
Annual Production Value (including value of processing): US$ 20 million ?
Expected Annual Commission Contributions: US$10,000
Estimated Annual Government Incremental Costs:
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