Honiara – As discussions on a new Tropical Tuna Measure (TTM) loom, Pacific island countries need to push more to get the international community to consider the impacts of climate change on the regional tuna fishery. It needs to take account of both high seas and in-zone allocations so that the measure can be more beneficial to the region.
Climate change has been come to be seen as one of the building blocks of the TTM, based on advice from the Scientific Committee of the Western and Central Pacific Fisheries Commission (WCPFC) that it is likely to result in increasing fish migration between zones to the east and the high seas.
Therefore, it is up to the members of the Pacific Islands Forum Fisheries Agency (FFA) member countries to lead the development of new measure – and it is apparent that there will be a lot of push and pull factors coming from some developed countries.
In a media conference to wrap up the 17th Tuna Commission meeting last December, the Chair of the Forum Fisheries Committee (FFC), Mr Eugene Pangelinan, said, “As we move towards developing a new Tropical Tuna Measure or successor, our experiences in the past will dictate our behaviour in the future.
“The outcomes of what will be a Tropical Tuna Measure for 2022 onwards will be based on a lot of factors. I’m concerned that issues like climate change just might fall down through the cracks as we negotiate that Tropical Tuna Measure.”
A challenge for Pacific small island developing states
According to Mr Pangelinan, the discussions on pushing for the effects of climate change on the tuna fisheries to be part of the TTM was going to be a challenge for the small island developing states (SIDS) of the Pacific.
This is due to the fact that the developed countries will also push for their own priorities to be considered.
“The way we see it, as we prepare for this process in 2021, I think some developed CCMs are starting to take a very strong position on their priorities, such as profits and profits for their vessels and ensuring that their vessels have a place in this fishery to retain what has been very beneficial to them,” Mr Pangelinan said. (CCMs are the members, cooperating non-members and participating territories that make up the WCPFC.)
The FFC chair said FFA had a “totally different” view, and anticipated that these kinds of issues might become watered down as people would be more focused on what members were trying to achieve through the objectives that would be agreed on in early 2021.
“So, it will be quite a challenge to bring in elements of climate change, crew and labour standards, and so forth,” Mr Pangelinan said.
Besides these areas of most concern, he said that considering the impacts of COVID-19 in the discussions, “as we start carving out or drafting new measures, it’s going to be very difficult. I will say, we’re going to just be really ready and prepared as we have these discussions, and keep those in the back of our minds that they’re equally important to our people.”
“It is also important to also have leadership directives, from our highest levels of government that these are priorities as well,” Mr Pangelinan said.
Climate negotiations as everybody’s business
The FFA Director-General, Dr Manumatavai Tupou-Roosen, told regional journalists after WCPFC17 that the fight for getting what’s beneficial to the Pacific island countries out of the new Tropical Tuna Measure was “everybody’s business” and could not be done by the FFA alone.
Dr Tupou-Roosen said it was a positive that Pacific leaders and ministers had highlighted the importance of climate change as the single greatest threat to their people.
“Whilst we’re faced with the immediate challenge and impacts of COVID-19 staying very much in front, on top of mind is what we do in the climate change space,” Dr Tupou-Roosen said.
“And so we will see that start to play out as well, in the discussions around the Tropical Tuna Measure, in terms of the high seas allocation, given the scientists telling us that there will be substantial amount of fish within our waters that will migrate to the high seas, due to climate change.
“This will be part of the conversation next year [2021] in that context.”
Projected distributions of skipjack and yellowfin tuna biomass in the Pacific Ocean in 2005, and in 2050 under a high greenhouse gas emissions scenario. Source: SPC.
She said climate change was also linked to concerns about maritime boundaries. Discussion about this issue needed the support of all members and the regional community.
“Overall, climate change is a piece of work that cannot be done alone by the FFA and not just the secretariat and the members,” she said.
“But this is a work that needs to be done with our partners within the regional architecture we have the Secretariat of the Pacific Regional Environment Programme as a lead in environmental issues, and as the lead in our preparation before the COP meeting at the end of 2021, and how we ensure that there are entry points into that conversation on our fisheries matters.
“Because we all recognise that we are not the cause of these issues related to climate change and global warming: it is the large gas emitters. The conversation is not happening in our in our fishery space.”.
Dr Tupou-Roosen said that the island states cooperating as a region in debates was important “to ensure that we can influence the debate, ensure that it has flow-on positive benefits and fight for our fisheries work.”
Mechanisms such as compensation could be used to the region’s advantage in the fishing space. However, Dr Tupou-Roosen hoped that the talks would be very successful once the upcoming COP meeting was held face to face.
HONIARA – While national and regional observer vessel placements remain suspended until at least 15 February, Pacific fisheries organisations are focused on ensuring that working conditions on fishing vessels are made safer for both observers and crew before the observer program resumes.
The Pacific Island Forum Fisheries Agency (FFA) continues to progress suspension of the observer program, as a priority of the Forum Fisheries Committee (FFC).
The Western and Central Pacific Fisheries Commission (WCPFC) initially suspended the observer program on 8 April 2020, to protect the health of observers working on purse-seine vessels as COVID-19 spread rapidly worldwide. The suspension has been extended several times.
Heading into the recent 17th WCPFC meeting, which was held by web link, one of the key priorities of FFA and its members was improving the safety of crew and observers.
The FFA members noted that it was simply unacceptable that observers potentially continued to face risks at sea and to suffer persecution, serious injuries and even death in the course of their work, and that human rights abuses were suffered by crew working on fishing vessels operating in the Pacific region.
In a submission to the WCPFC before the Tuna Commission meeting, FFC Chair Mr Eugene Pangelinan said the members of the FFA were “committed to addressing these issues and are taking measures to improve standards in relation to fishing within our waters, and to create a ‘safety culture’ around the role of observers.
“It is imperative that the commission collectively commits to implement such standards on the high seas. We look forward to working with CCMs and with committed partner organisations to advance this work in the commission as a matter of priority over the coming year,” Mr Pangelinan said. (CCMs are the members, cooperating non-members and participating territories that make up the governing body of the WCPFC.)
Disappointing decision on crew and observers at WCPFC
However, speaking to Pacific journalists at the end of the 17th Tuna Commission meeting, Mr Pangelinan said the FFA members had walked away with mixed feelings about the WCPFC decision on the safety of crew and observers.
This is due to the fact that before the commission meeting, members had hoped that all CCMs would share FFA members’ belief in the level of importance of observer safety and labour standards of crew and fishing vessels operating in the WCPFC convention area.
“Regrettably, one CCM [China] had legal as well as procedural issues about this kind of a measure being put forward by Indonesia,” Mr Pangelinan said.
At the Tuna Commission meeting, Indonesia submitted a proposal regarding the adoption of a conservation and management measure (CMM) on labour standards for crew of fishing vessels. (A resolution on labour standards exists, but resolutions are not binding and so not enforceable. It is mandatory to follow the provisions of CMMs.)
In its submission, Indonesia acknowledged that fishing crews were at risk of forced work, low or no pay, and human trafficking because of communication challenges, and the absence of proper training and of authorisation of wellbeing and work benchmarks.
In submitting the proposal to the Tuna Commission, Indonesia’s Director of Fish Resources Management, Mr Trian Yunanda, wrote: “Forced work and human dealing in fisheries segments are much of the time connected to different types of wrongdoing, for example, transnational sorted out fisheries wrongdoing and corruption.
“Another labour abuse factor is the expanding worldwide interest for fish and the quick development of modern fishing fleets alongside overexploitation. Fishing operators can have a competitive benefit by crewing their vessel with under-qualified and cheap members.”
“In the spirit of responsible fisheries management, an issue of labour abuse needs to be addressed properly and regulated accordingly, including within the convention area of WCPFC, through the implementation of conservation and management measures for labour rights.”
Mr Pangelinan told the Pacific journalists that, although the proposal did not become a CMM, with FFA members’ guidance and because CCMs were so vocal about the issue in the Tuna Commission meeting, they were able to carve out a hybrid intersessional working group (IWG) that would advance the work that Indonesia is doing.
“New Zealand will be co-chairing that process of working to address the concerns of that one CCM, in relation to whether the commission has a mandate to also address issues of labour and crewing standards and observer safety and so forth,” Mr Pangelinan said.
He also confirmed that the FFC was convinced that it did have that mandate.
“There are many legal instruments or legal provisions of the convention that lead us to believe that that is the case. And we will continue to work with other CCMs to make sure that, in 2021, the IWG does manage to or at least continues to work on even an independent study that specifically focused on this particular issue in the WCPFC area,” he said.
The FFA Director-General, Dr Manumatavai Tupou-Roosen, said the intersessional process “is an important outcome for this commission, given the different views among CCMs on the mandate of the commission to deal with this subject matter.
“As the chair and our members have said in strong support for Indonesia’s draft crewing CMM in the past, in the lead-up to adoption of the Korean resolution, this is a top priority for our membership. And – we’ve said this before – it’s the right thing to do: it is the human side to our work and cannot be ignored. Work must progress on this, not just within our waters but also, importantly, within this commission on the high seas,” said Dr Tupou-Roosen.
FFC Chair Mr Eugene Pangelinan, left, and FFA Director-General Dr Manu Tupou-Roosen,
right, at Sir John Guise Stadium, Port Moresby, for the 16th Tuna Commission meeting.
Top priority to get observers back on fishing vessels
Despite the mixed reactions by members on discussion on the safety of crew and observers at the Tuna Commission meeting, getting observers back onto ships is still a top priority for the FFA and the FFC.
Mr Pangelinan told journalists: “Obviously, with over 800 observers in the Pacific, it is important that we try to put them back to work and provide for their families, and being also the eyes out on the water.”
But while COVID-19 continued to prevail in the region, “the safety of observers is of paramount importance”.
“All these additional COVID responses that we’ve had have added additional burden on the secretariat and the members in terms of compliance and reporting. And so the bit of normalcy would be something that everybody would welcome.
“Unfortunately, that’s not the case [at the moment]. And I think that, notwithstanding COVID-19 still happening throughout the region, some members were of the view that they wanted to still start the deployment, and get people back on the vessels,” Mr Pangelinan said.
“But we’re not confident yet that the commission has a robust guideline and protocol that all members must adhere to, to ensure the safety of observers as we slowly recommenced the deployment. And that’s why we called upon even other systems who have non-FFA members to show us what have they put in place that will provide us the assurances that observers will be cared for, taken care of and protected against potential contracting of the COVID-19.”
Dr Tupou-Roosen said that, in the meantime, a draft intersessional decision worked be worked on by the commission chair to be circulated by end of January or early February.
“The commission chair will work on some language that will be circulated before then to sit to determine what can be done before it [the current suspension] expires. This is something that our membership will continue to look at,” she said.
Members call for COVID-19 protocols for observers
The FFC had already established protocols and guidelines that it called best practice, ready for the day when the suspension was lifted. Most members had said that returning observers to vessels was a necessity for their vessels to continue to operate.
“But, obviously we’re just going to have to sit back and wait and see what happens,” Mr Pangelinan said.
“The commission is already starting to think ahead about how we’re going to actually do that.
Fisheries, Maritime and Ports Authority officers monitor a fishing vessel unloading under COVID-19 protocols in Apia Port, Samoa. Photo: Samoa NHQ.
FFC had called on members to share their national protocols “to see whether those match up with the kind of assurances we want for our observers – when they’re redeployed, whether they’re coming through their own ports or through some other ports – that they’re not a lower standard than what the FFA members have put together.
“We have to keep bearing their safety in mind and the safety of the populations of the countries that they’re also going through,” Mr Pangelinan said.
He said that vessel owners and vessels wanted to see progress on preparations for the resumption of onboard observer work.
In support of the need to have all national COVID-19 protocols in hand, the FFA had asked other CCMs to share their protocols, so it could assess their standard .
“The goal is always to give our national observer programs the confidence that they can safely return their observers to vessels,” Dr Tupou-Roosen said.
The year 2020 will be remembered for the many different ways the COVID-19 pandemic dominated human lives.
COVID swaggered; blazed. Seemingly overnight, it carved a one-in-a lifetime transboundary trail through countries, races, creeds, status and belief systems. It doled out death, economic meltdowns and societal disruption while planting uncertainty in the globe-wide swathe leaving human misery festering in its wake.
Yet, dotted among the devastation are small clusters of human resistance. And isolated within some of these clusters are the rare nuggets – small pockets of people claiming victory by maintaining a semblance of pre-COVID normalcy.
One such pocket is the Western and Central Pacific Ocean (WCPO) tuna fisheries managed by the Western Central Pacific Fisheries Commission (WCPFC), also known as the Tuna Commission. It is a body where all 41 stakeholders develop management measures collectively and operate by consensus.
For many of the bloc of 24 Pacific island countries and territories (PICTs), victory in 2020 boiled down to two key things: committed, hardworking people; and ‘one decision’ (consensus).
Together they blunted most of COVID-19’s disruptions to the harvest and commercial activities in the region’s US$6 billion a year fisheries sector.
Due to COVID-19, Pacific fisheries ministers and national representatives met for the annual Forum Fisheries Committee meeting in August 2020 over the Zoom platform. Photo: FFA Media.
Blunted: COVID-19’s influence on Pacific fisheries
The commitment and dedicated work of Pacific fisheries officials included the efforts of their many intersectoral and international partners. Without ongoing fisheries activity, incoming revenue and an operating regulatory machinery, the sector would have been neutralised. But the sacrifices, resilience and sheer doggedness of the people involved “kept the fisheries open and active in producing the necessary catches”, according to Mr Eugene Pangelinan, Chair for the Pacific’s Forum Fisheries Committee (FFC), who spoke to journalists at a media conference during the 17th annual meeting of the Tuna Commission last month.
“That dedication ensured the markets continued to receive the supply of tuna from the Pacific to feed the world,” Mr Pangelinan said.
Officials’ work also ensured that “all key tuna stocks – the skipjack, yellowfin, bigeye and albacore – are all very healthy. So, I think that’s something we can be very proud of.”
Forum Fisheries Committee Chair Eugene Pangelinan during the post-WCPFC17 media conference, held via Zoom. Photo: Fatu Tauafiafi/Pacific Guardians.
The WCPFC’s consensus way of operating was notable in a decision made at WCPFC17, which was held virtually from 8 to 15 December.
Of the 96 decisions made by the Commission, it was decision number 39, on the rollover of the Tropical Tuna Measure (TTM), conservation and management measure 2018-01, that was important above all others. That single decision has enabled the gains hard won in 2020 to be followed through in 2021.
More importantly, decision 39 provided an opportunity for those in charge of the tuna fisheries to maintain the current measure beyond its 10 February 2021 expiry date, while they craft a new TTM for endorsement when the Commission meets in December 2021. In the interim, the current TTM provides certainty, trust and transparency for Pacific members that its fisheries will be managed well as the Commission continues its work towards establishing harvest strategies for the four most important species.
Why the Tropical Tuna Measure mattered above all other measures
Decision 39 on rolling over the TTM reads: “The Commission agreed on a simple rollover of CMM 2018-01 for one year and accordingly adopted CMM 2020-01 Conservation and Management Measure for bigeye, yellowfin and skipjack tuna in the Western and Central Pacific Ocean.”
At the heart of the Tuna Commission negotiations and decisions are the three tropical tuna species, skipjack, bigeye and yellowfin). The TTM is central to harvesting the species in a sustainable manner and also attempts to take into account the special requirements of the Pacific’s small island developing states (SIDS).
It does this by defining the limits for fishing in both the sovereign waters of PICTs and the high seas pockets on the WCPO by setting out effort and catch restrictions for the two principal WCPFC fisheries – the tropical purse seine fishery and the tropical longline fishery. Together, they comprise approximately 75% of the tuna caught in the WCPO, which provides 66% of all the world’s tuna. In 2019, the value of WCPO tuna value was estimated at US$5.8 billion (purse seine US$3.02 billion, longline US$1.61 billion).
When decision 39 was endorsed, it was no surprise to hear Pacific negotiators’ stress levels giving way to relief, according to Mr Stan Crothers, who represented Tokelau and shared a perspective as part of the Parties to the Nauru Agreement (PNA).
“We were quite concerned that if they [the Commission] hadn’t concurred, we would have been in the awful situation where there is no conservation and management measure in place. We certainly didn’t want to get to that point – an open slather – especially on the high seas,” Mr Crothers said.
“So, if there’s one word that describes what this means, it is ‘relief’ that we got a measure to keep things in place. And because of the COVID-19 conditions, this was a huge success.”
At the post-WCPFC17 media conference, Mr Pangelinan also paid tribute to the effort behind the scenes by Pacific members and their partners that led to the victory.
“The Forum Fisheries Agency [FFA] team as a bloc, working together with the Parties to the Nauru Agreement as a bloc, succeeded in having the TTM rolled over,” he said.
As well as securing a process for the 2021 negotiations that will include two intercessional workshops in April and June–July, they ensured the process would take into account COVID-19 impacts, and ensure a special provision to “avoid a situation in which the WCPFC had no Tropical Tuna Measure”.
Mr Pangelinan was especially satisfied with securing the special provision.
“There’s a key provision in there that I took away as being very essential,” he said. “In the event there is no agreement – that if we are unable at WCPFC18 to agree on a Tropical Tuna Measure – then we [Tuna Commission] shall commit to another roll over of current measures to ensure the fishery has a management regime in place in 2022.”
Mr Crothers was asked how the Pacific would fare if such a scenario should come to pass.
“Are we really concerned about another rollover of the Tropical Tuna Measure? No, we’re not,” he said.
“The TTM that we’re operating under is good for the fishery and really good for the PNA and therefore good for Tokelau. So, we’re actually quite relaxed about it [if there’s another rollover].”
2021 to be a “monster” year of pushing through delayed work
The new conservation and management measure needs to be well crafted and negotiated exhaustively so there is consensus when it comes before WCPFC18 in December 2021.
However, it is far from the only work to get through in 2021. Some Pacific negotiators have said the Commission has created a problem because it has rolled over other key issues from year to year.
Mr Crothers said, “If the rollover decision had been made in pre-pandemic times, we would have said, ‘That was not a very successful meeting.’ But because of COVID-19, it ended up being a huge success.
“But what it really highlighted was that, over the years, we’ve been kicking the can down the road on a whole lot of issues. And in the COVID crisis, we’ve been able to sort of bounce around and get by. But a lot of stuff has been delayed and is now building up.
“It now means 2021 is turning into a monster because we have got to renegotiate the Tropical Tuna Measure, we’ve got to negotiate an albacore measure, and then, on top of that, we’ve got to renegotiate the US treaty. Further, we have to progress the FFA longline strategy, enhance the PNA Longline Vessel Day Scheme, implement electronic reporting and electronic monitoring, and so forth.
“So the challenges for the FFA and the PNA in 2021 are huge, because the work delayed in 2020 is now pushed out to 2021.”
US Treaty signing ceremony in Nadi, Fiji, in 2016. Photo: Fatu Tauafiafi/Pacific Guardians.
Face-to-face meetings likely to be further delayed
Despite hopes at the end of 2020 that international travel might resume by July, it now seems unlikely that this will be the case.
Mr Crothers said: “My biggest worry is that, if we’re not travelling in the Pacific by, at the latest, June or July, then I think we are not going to be able to get the work done to negotiate a new Tropical Tuna Measure, and therefore we may be faced with another rollover by this time [December] in 2021.”
Mr Pangelinan agreed that another rollover at WCPFC18 was a real possibility. The majority of negotiators have readily admitted that, to get such complex issues over the line, physical meetings are a must. Yet even with COVID-19 vaccination programs underway in various countries, Mr Pangelinan didn’t hold out much hope for the resumption of physical meetings soon.
“I think we must accept the fact that if things are not going to change by early 2021, we will have to just simply resort to this [Zoom] platform to try and progress these issues as much as possible,” he said.
The Director-General of FFA, Dr Manumatavai Tupou-Roosen, said FFA would focus on improving preparations and briefings for its members using the virtual platforms, and also on building even closer coordination with partners and stakeholders.
“Everybody’s hopeful that we could start some physical engagements because we have pushed a lot of work – that’s not understating it – a lot of work to 2021,” Dr Tupou-Roosen told Pacific journalists at the WCPFC17 media conference.
“It will require us to be very organised in getting in touch virtually as FFA members and also with our partners in advance of any set dates for WCPFC workshops leading up to the WCPFC18 in December 2021.
“And what has really shone through during the present challenge created by COVID is the strength, resilience, adaptability and innovation of our Pacific people. And being led by their continued commitment to cooperation.”
Pacific island states disadvantaged by virtual meetings
For the 2021 work, Pacific members are still hoping that a return to physical meetings will come to pass this year. That is because, as has been confirmed in 2020, virtual platforms dilute their positions and collective strength dramatically.
According to Mr Crothers, there are two areas that highlight the Pacific’s concerns: technology infrastructure, and platform to agree on collective action.
“It is particularly difficult to negotiate complex measures, using this [Zoom]. It has compounded the problems for SIDS on two levels,” he said.
“The quality of their internet connection and so forth is not great. We had people dropping in and out while meeting, so there’s that the technological infrastructure problem. It means that the SIDS’ ability to participate is constrained.
“If they can’t participate, their interests are not reflected and therefore it’s quite hard to get a consensus.”
Secondly, the strength of the FFA and the PNA is in collective action. This has come to the fore in recent meetings of the Commission. This was illustrated by the passage of the climate change resolution at WCPFC16.
“We are a whole lot of little guys and we’re up against the heavyweights of the EU, US, China and Japan. The only way we can compete with them is if we all band together as a collective,” Mr Crothers said.
“We can do that best when we meet physically – to negotiate our collective positions and settle on our game plan.”
It is never an easy task, as every Pacific country and territory has its own views and unique interests and needs.
“So getting a consensus amongst Pacific countries is a challenge. But once we have it, that’s when we can compete against the big guys,” he said.
“With COVID in the mix, it’s been difficult to get the FFA positions sorted, build a consensus and get our game plan sorted. So, once again, this situation means it’s been a difficult time for us.”
The clear advantage of physical meetings … Pacific negotiators revisit their strategy on the climate change resolution during one of the breaks at the 2019 Tuna Commission in Port Moresby, PNG. Photo: Fatu Tauafiafi/Pacific Guardians.
2021 expected to be difficult – but doable
Difficult is still doable: the Pacific fisheries sector has shown that in 2020.
And even though there is a lot of uncertainty about what may or may not be achieved in 2021, the largest bloc at the Tuna Commission took time out to celebrate and reflect on the WCPFC17 success, and especially the continuation of the TTM.
On reflection, there was time to evaluate several disappointments. The biggest one for the Pacific was the Compliance Monitoring Scheme.
“The compliance monitoring report was probably the biggest disappointment of the 2020 meeting for us,” said Mr Pangelinan, referring to a Commission member that was able to manipulate the system to continue to escape being held accountable for not complying or adhering to its limits on the high seas.
“It is a very unfortunate one because, for us, we are now wondering about the integrity of the entire Compliance Monitoring Scheme as a package of measures that look at how members meet their obligations,” said Mr Pangelinan.
Getting policy results will be a big challenge
As a result of the lack of action by the Tuna Commission, “we’re going to have to look very carefully, think very hard, about any future Tropical Tuna Measure and how those elements of limits or even obligations themselves are going to be interpreted.
“I would say this one is the big fish that got away. We should have had an assessment but we did not successfully do that.”
He said that the use of virtual platforms as the form of communications and negotiations was a definitely a contributing factor.
“I would say that, if this was not done through this virtual platform, I think the outcome would have been totally different,” Mr Pangelinan said.
Several issues significant to the Pacific were pared right back at WCPFC17, and some were not even discussed: the climate change resolution; harvest strategies; maritime boundaries; high-seas allocation, and illegal, unreported and unregulated (IUU) fishing.
“Those particular issues may become watered down as people will be more focused on what we are trying to achieve through the objectives we will be agreeing to in the early parts of 2021,” Mr Pangelinan said.
“It will be quite a challenge to bring in elements of crew and labour standards, COVID-19, climate change, and so forth, into these discussions as we start carving out a new measure, so it’s going to be very difficult, I will say.
“We will have to be really ready and prepared so that, as we have these discussions, we keep those in the back of our minds that they’re equally important to our people. We also have leadership directives from our highest levels of government, that those are priorities as well.”
In March, a study on IUU fishing, which revisits a 2016 report, on IUU will be tabled. That should help provide some oxygen for the work on IUU mitigation going into 2022.
Another major 2021 event will be the La Niña weather pattern. It is forecasted to bring a boon for fisheries in the west of the region.
Mr Crothers said, “We’re likely to see good catches in the Solomon Islands, Papua New Guinea, Nauru and so forth, and not so good conditions in Tokelau, Kiribati and Tuvalu.”
It is also likely that for 2021 and 2022, and beyond, the waters of Pacific small island states and territories will remain the lucrative, as the three commercially important tropical tuna, plus albacore tuna, have been confirmed by scientists as remaining in a healthy state. This knowledge reassures officials that fisheries revenue, employment, private sector opportunities and developmental progress for many PICTs are inoculated against the more virulent assaults of COVID-19.
Tokelau, where fisheries provide about 85% of the territory’s entire domestic GDP, is one of the lucky few: the benefits it gains from its fisheries are almost immune to COVID-19. This is also the case for a number of other WCPO states. But that immunity has come about entirely through the hard work of its national fisheries officials, as well as their regional and international network of partners, among them FFA and PNA members.
“The TTM we’re operating under now is good for the fishery, it’s really good for the PNA, and it’s good for Tokelau,” said Mr Crothers.
“If a rollover happened again into 2022, so be it.”
But wouldn’t it be great if travel to fisheries meetings is allowed to take place by July 2021?
Nukunonu, Tokelau, is one of the few COVID-free pockets in the world. Photo: Fatu Tauafiafi/Pacific Guardians/Taupulega Nukunonu.
A process for negotiating a new Tropical Tuna Measure has been agreed by the Western and Central Pacific Fisheries Commission (WCPFC), paving the way for adoption at the end of next year.
At this year’s annual WCPFC meeting, which finished yesterday, members agreed to roll over the current conservation and management measure, CMM 2018-01, to extend it for another year.
This means the commission has avoided the problem that its counterpart in the eastern Pacific now has, after it failed to find consensus on the rollover of its equivalent measure and is left with no way of managing fishing for bigeye, skipjack and yellowfin tuna.
CMM 2018-01 was due to expire in February.
The process the WCPFC17 has agreed to was proposed by the Pacific Islands Forum Fisheries Agency (FFA). It will be conducted online.
The Chair of the Forum Fisheries Committee, Mr Eugene Pangelinan, said in a media conference today that work would need to start almost immediately, because negotiations were more difficult online.
“We have a lot of work to do so that by next December we have all the building blocks read for WCPFC to make a decision, not just on the Tropical Tuna Measure, but also on South Pacific albacore, crewing conditions, and observers,” Mr Pangelinan said.
The WCPFC will convene three workshops to develop the replacement measure. The first one will be in April. Development work will continue between workshops.
The conservation and management measure will work towards the adoption of harvest strategies, as laid out in another rule, CMM 2014-06. The harvest strategy would operate hand-in-hand with the Tropical Tuna Measure and conservation and management measures for other species. Harvest strategies are used to manage commercially important species so they remain biologically sustainable while maximising profits from the fisheries.
WCPFC expected that some, and perhaps all, of the workshops would be held virtually.
Virtual meetings have proven to be unsatisfactory when negotiating details of important decisions. To minimise the problems with this format, the agreement of the process stated that was “essential” that those taking part in developing the next CMM participate cooperatively in sessions between workshops.
Mr Pangelinan said, “There have been a lot of lessons learned this year. One of the bad things about using this platform is the lack of interpersonal engagement. This can influence outcomes,.”
The process for negotiating the Tropical Tuna Measure needed to include ways of maintaining appropriate discussion and negotiation.
All proposals would have to be put in writing and shared. They would also have to include an assessment of the impact on small island developing states (SIDS), in line with CMM 2013-06.
This CMM is to ensure the SIDS can participate on an equal footing with wealthier members of WCPFC, and that they do not have to bear unreasonable costs or workload.
One of these is ensuring that SIDS members can participate fully.
The Director-General of FFA, Dr Manu Tupou-Roosen, said in the media conference today, “Our members are very clear about this. Capacity building to be able to work on this virtual platform is as important as being able to sit at the meetings.”
The Inter-American Tropical Tuna Commission (IATTC) has failed to reach a consensus on the management of tropical tunas by one vote – with Colombia opposing the resolution – leaving tuna fisheries without any rules starting on 1 January.
The tropical tuna fishery – which includes bigeye, yellowfin, and skipjack tuna stocks – includes billions of dollars of catch. With the failure to reach a consensus – the first time in the IATTC’s history – the fishery is left without any form of management, including quotas, gear types, and more. While individual countries can choose to implement regulations matching the proposed IATTC resolution, region-wide rules will end.
Immediately after the failure of the IATTC to continue its current management into 2021, multiple non-governmental organisations – such as the Pew Charitable Trusts and the International Seafood Sustainability Foundation (ISSF) – sharply criticised the lack of action.
“For the first time in its 70-year history, the Inter-American Tropical Tuna Commission has completely withdrawn from management of tropical tunas,” the Pew Charitable Trusts Director of International Fisheries, Amanda Nickson, said in a release.
The lack of management stems from the IATTC failing to enact resolution 17-02 for tropical tuna species.
“Despite the clear scientific advice to, at a minimum, keep these provisions intact, the objection of one party blocked their extension,” the ISSF said. “As a result, the sustainability of the region’s tropical tuna fisheries and marine ecosystems is now at risk.”
Meetings of all regional fishery management organisations (RFMOs) have had to be moved online due to the ongoing COVID-19 pandemic. However, despite the challenges, the IATTC managed to enact other management changes – specifically, a new resolution establishing minimum standards for electronic monitoring.
“IATTC was able to make critical progress towards electronic monitoring, a much-needed step to help improve oversight of fishing vessel activity – demonstrating that, even during virtual meetings, governments can reach important agreements,” Pew said in a statement.
With a failure to act on any management issue, the future of any Marine Stewardship Council-certified species in the region is “is now uncertain”, Pew Charitable Trusts said. It also brings into question the efficacy of RFMOs.
“It’s clear that business as usual is not working and that regional fisheries management organisations such as IATTC need to urgently modernise their approach to management. When meeting participants can’t reach consensus, the default should never be to simply suspend management of species,” Nickson said.
“The issues with RFMOs go beyond IATTC and stem from management approaches that aren’t robust enough to handle unexpected challenges.
“The need to responsibly manage fish stocks worldwide calls out for significant reforms in the predictability and stability of decision-making, including a modernised system of pre-agreed decision frameworks known as harvest strategies; enhanced transparency of vessel activity through expanded observer coverage and transhipment reform; and greater accountability by adopting measures to improve compliance with existing rules and to end and prevent illegal, unreported, and unregulated fishing.”
Later this week, the Western and Central Pacific Fisheries Commission (WCPFC) will be meeting to decide the fate on another set of tuna stocks, with many of the same countries participating in the meeting.
“If WCPFC also fails to reach consensus on a measure, tropical tunas in the entire Pacific Ocean basin would be left unmanaged, threatening the viability of these US$24 billion [€19.8 billion] fisheries and the already tenuous status of many vulnerable populations that are impacted by these fisheries.”
The meeting, which is normally held face to face, is this year being held via Zoom amid the COVID-19 pandemic.
Pacific Islands Forum Fisheries Committee (FFC) Chair Eugene Pangelinan, in a Zoom media conference with the journalists on Monday, said that members were coming into the meeting already agreeing to the rollover of the Tropical Tuna Measure, which is set to expire after 10 February 2021. (The measure is formally known as CMM 2018-01, Conservation and management measure for bigeye, yellowfin and skipjack tuna in the Western and Central Pacific Ocean.)
Mr Pangelinan said there had been an initial proposal in November from the United States to make changes in the existing measure that also included the removal of two-month FAD closure on the high seas and a request for an additional 760 fishing days to the high-seas purse-seine effort limit. However, Mr Pangelinan said on Monday, this proposal had been withdrawn, and was now deferred until next year.
Mr Pangelinan said the US had realised that negotiations in an online platform could be difficult.
“All these preparations for this Commission meeting and the bilateral meetings we had with our partners have produced some really good results. The US is accepting the fact that this is not the environment for negotiating substantive measures, which will have a dramatic impact on small Island developing states. Agreeing to just roll over the Tropical Tuna Measure until next year is already a good outcome,” he said.
In the Forum Fisheries Agencies (FFA) list of key priorities, which was circulated before WCPFC17 began, the agency proposed that the Commission facilitate a rollover of the measure to make sure it did not lapse.
The FFA recommendation is that the current objectives for yellowfin and bigeye tuna be maintained until such time as a target reference point could be agreed “following the appropriate level of discussion”.
FFA Director-General Dr Manu Tupou-Roosen said that most WCPFC members, including FFA member countries, recognised before the meeting began that it was important to roll over the tuna measure. This was already a successful outcome of the meeting, she said.
The Tropical Tuna Measure is a three-year agreement that governs the tuna catch in the region.
In 2018, the value of the provisional total tuna catch was US$6.01 billion, according to data from FFA. For many Pacific Island nations, the tuna fisheries are their economic lifeline. The current Tropical Tuna Measure maintains a framework whereby, with current levels of catch, tuna stocks are harvested at sustainable levels.
FFA also noted that the COVID-19 pandemic and associated ban on travel and face-to-face meetings have challenged the ability to progress key Commission issues during 2020, “in particular with the difficulties many members face with online connectivity and participation in discussions, which may have significant outcomes for their national interests”.
Dr Tupou-Roosen said that FFA members also needed to ensure there was open discussion on the current Compliance Monitoring Scheme to ensure that member nations were following their obligations.
FFA also noted the need to progress discussions on climate change, crew and observer safety, and the enhancing of electronic reporting and monitoring to complement the work of human observers. Regional and national fisheries observer programs are currently very challenged by the pandemic.
FFA Deputy Director-General Matt Hooper also lauded WCPFC members, who, despite the inability to meet in-person, had agreed to be on the same page to roll over the Tropical Tuna Measure.
The Western and Central Pacific Fisheries Commission (WCPFC) will hold its regular annual session from 7 to 15 December, with the renewal of the tropical tuna measure on bigeye, skipjack, and yellowfin billed as the main topic up for discussion.
The meeting, WCPFC17, has been complicated by the COVID-19 pandemic, which has forced the commission to meet virtually, according to WCPFC Executive Director Feleti Teo.
“Due to the constraints of the Zoom online meeting platform, the agenda of the WCPFC17 has been substantially pared back, to focus principally on essential issues that the commission is required to consider and take decision [on] in 2020 to ensure the continuity of the work of the commission and its secretariat in 2021 and onward years,” Mr Teo said.
The conservation and management of the three tropical tuna species – bigeye, skipjack, and yellowfin – will be a focus of the meeting. The tropical tuna measure [CMM 2018-01] applicable to these species, which has been in place for three years and regulates tuna catch in the region, is set to expire after 10 February 2021. It ensures skipjack, bigeye, and yellowfin tuna stocks are maintained at recent average levels and capable of producing maximum sustainable yield.
According to the Pacific Islands Forum Fisheries Agency (FFA), the value of the provisional total tuna catch in 2018 was AU$8.9 billion (US$6 billion, €5.4 billion) – marginally higher than it was in 2017, and the highest seen since 2013.
In its key priorities paper submitted to WCPFC ahead of the meeting, FFA proposed a continuation of the existing measure, given the constraints of negotiating via the online platform.
“FFA members therefore propose the commission facilitates a rollover of the measure to ensure this critical CMM does not lapse and the current objectives for yellowfin and bigeye tuna are maintained until such time as target reference point can be agreed following the appropriate level of discussion. We note this approach to deferring substantive negotiations is consistent with that taken by other RFMOs this year, and will be familiar to WCPFC [members] who are also members of those organisations,” Forum Fisheries Committee Chair Eugene Pangelinan said in the paper.
FFA acknowledged that COVID-19 has created obstacles to progressing on key commission issues during 2020, “in particular, the difficulties many members face with online connectivity and participation in discussions, which may have significant outcomes for their national interests”.
Glen Holmes, who serves as an officer with The Pew Charitable Trusts international fisheries program, said the dominant topic of discussion in the upcoming meeting would be the tropical tuna measure.
“Even though there is a general desire to do as little negotiation [as] possible this year, they have to deal with the tuna measure,” Mr Holmes said.
Holmes said the most appropriate thing for WCPFC members to do was roll over the measure for another 12 months, and maintain the current guidelines until more substantive discussions could be had among the delegates.
In Pew’s position paper submitted to WCPFC, the NGO called for management of the three tuna stocks, in an effort to ensure uninterrupted continuation. It added that the management of these tuna should be supported by the goal of implementing fully specified harvest strategies, including maintaining bigeye and yellowfin populations at or above 2012–2015 levels until target reference points are adopted, and without increasing the risk of breaching the limit reference point.
Mr Holmes said it was a huge missed opportunity for the commission not to have discussed issues of harvest management strategies in last year’s meeting. It was crucial that the commission create a Science–Management Dialogue Working Group, he added, to accelerate development of harvest strategies.
Mr Holmes said one thing positive about the COVID-19 travel restrictions is that there are opportunities to form the working group.
Pew is also urging WCPFC to improve oversight of fishing activities. The NGO said that, with the temporary removal of fishery observers from vessels due to the pandemic, the commission should work to finalise recommendations for electronic monitoring on vessels as a cost-effective way to improve data collection and augment human observer coverage.
Mr Teo said the WCPFC17 would also cover the limits and allocation for the high-seas purse-seine fishery and bigeye longline fishery.
conservation management measures (CMM) endorsed on the non-target species of mobulid rays and sharks
FFA summarises WCPFC16 outcomes for Pacific priorities
When Ms Jung-re Riley Kim, the Chair of the Western Central Pacific Fisheries Commission (WCPFC), officially closed its 16th annual meeting on Wednesday, Pacific officials finally relaxed and allowed themselves muted celebrations for a job well done.
Praise for major decisions made by WCPFC16
The Chair of the Pacific’s Forum Fisheries Committee, Mr Eugene Pangelinan, told regional journalists at the final media conference, “This is a very successful WCPFC16, and wonderful hosting by the people and government of Papua New Guinea and the National Fisheries Agency.”
“There’s been some very good outcomes, and the first one is the adoption of the climate-change resolution. From the FFA members’ perspective, that is one of the key priorities we wanted to get out of this meeting, given that one of the things our ministers tasked us to advocate for at the WCPFC was to address climate-change issues in relation to fisheries.”
He said another great outcome was the continuation of the Compliance Monitoring Scheme (CMS) for the next two years.
“The compliance scheme ensures members are held accountable to their obligations and goes a long way to ensuring sustainable fisheries management for the region,” Mr Pangelinan said.
Mr Bubba Cook of the World Wildlife Fund paid tribute to Pacific leadership at the meeting.
He said that the climate resolution “demonstrates that in two consecutive years we have seen a measure that’s been passed – crew welfare in 2018 and now climate change – that is reflective of the leadership in the Pacific island members. The [show a] willingness to take on the tough and challenging issues and provide solutions to those issues, so we are very encouraged by that motivation.”
The Director-General for FFA, Dr Manu Tupou-Roosen, added and re-emphasised the importance of the climate decision. She pointed out its valuable role as a “starting point to increase the focus of the Commission in this critical space so we look forward to that active work in this area with all Commission members”.
She acknowledged the work by Pacific countries as well as other Commission members, “underlining that no one achieves anything alone. Our members have worked really hard including with all Commission members to get to the point we’re at tonight.”
Dr Tupou-Roosen also highlighted positive outcomes for other species that get caught up indirectly as fishers chase the tuna harvest.
“There have been some key outcomes to come out of this Commission related to non-target species. The mobulid rays conservation management measure (CMM) is a win for this Commission; also the adoption of a comprehensive sharks CMM that has taken two years to have adopted.”
Finally able to relax after the intense days of the WCPFC16 meeting: from L–R, Mr Bubba Cook (WWF), Mr Glen Holmes (Pew), Mr Eugene Pangelinan (FFC), Dr Manu Tupou-Roosen (FFA), Mr Noan Pakop (NFA), and Mr Ludwig Kumoru (PNAO)
But some FFA priorities did not progress as well as hoped
But there were also a number of priority issues that did not progress as well as they should.
Mr Pangelinan said, “We were not able to agree on how we are going to proceed with the discussions in terms of the high-seas allocations. That’s something that has been somewhat watered down and now we are going to tackle it at the next WCPFC meeting.”
Mr Glen Holmes, international fisheries officer with Pew Charitable Trusts, praised the success of the rays CMM, but said that work on harvest strategies didn’t go far enough.
“We are very happy with the adoption of the mantas CMM. We think that was a big win for the Commission,” he said.
“But I think there was a very big missed opportunity for the Commission to establish a dedicated meeting for scientists and managers to meet to discuss the issues around harvest-management strategies to further progress that part of the Commission that will lead to a more sustainable management of the stocks into the future.”
Mr Bubba Cook expanded on perceived missed opportunities.
“We think there was some significant progress around a number of issues at the meeting, specifically around harvest-strategy development, but we also remain concerned that some of the measures were not quite as robust as they could have been, particularly for the sharks CMM.
“We have one of the most endangered stock of sharks here in the Pacific with the oceanic whitetip and there were a couple of provisions that would have gone a long way to help with sharks and ensure the long-term sustainability of those stocks. But at the same time there was a great amount of effort that went into the CMM for sharks and it reflects a lot of willingness to compromise around the table, and I certainly would like to acknowledge that as well.
“The manta and mobulid [rays] CMM was also a big step and we are certainly happy to see that move forward.”
Although there was no movement in the skipjack target reference point (TRP) negotiations that are important to members to the Parties to the Nauru Agreement (PNA), there was no harm done, according to Chief Executive Officer for the PNA Office, Mr Ludwig Kumoru.
“Overall, we are happy with the outcome of this Commission meeting,” Mr Kumoru said.
“Our major objective was on the TRP. It may be seen as a push back, but for PNA it is still acceptable, we still have time to work on it. I think if we rushed it and got to a decision where we wouldn’t be comfortable then we would be in a very difficult position. So, we are comfortable with the outcome. The stock is not in the red; it is in the green we can still buy some time and look at ways to address it.”
Pew Charitable Trusts’ Glen Holmes (second from left) explains his perspective on one of the missed opportunities at WCPFC16
Looking to the future
In summing up, Mr Pangelinan said, “The Commission has done very well in discussions about future tools that the Commission wants to use to improve monitoring. And two of those are electronic reporting and electronic monitoring. From the FFA perspective, these are important tools that will help fill the gaps in the data from fishing on the high seas in particular and the longline operations.
“So that is something that we also want to highlight: that adopting/agreeing to the objectives here, was a big step to progress the work of the Commission.”
FFA summary of WCPFC outcomes on Pacific priorities
Climate-change resolution – resolution adopted
WCPFC adopted a resolution on climate change based on the draft that was put forward by FFA members at the start of the meeting. This was a significant milestone for the Commission and a great success for FFA Members. The resolution responds to the call from Pacific Islands Forum leaders for increased attention, including in scientific research, to be placed on the impacts of climate change on the region’s highly migratory tuna stocks.
The non-binding resolution also looks at the links between fishing activity and climate change, and for the Commission to consider options to reduce the environmental impacts related to headquarters operations and meetings.
FFA members’ proposal to reform the WCPFC Compliance Monitoring Scheme was one of the hardest issues discussed at WCPFC16.
Cook Islands led the charge for FFA members and, after extensive negotiations, agreement was reached on the last day to a revised measure which focuses compliance monitoring on the implementation of measures by members rather than delving into the detail of individual cases involving fishing vessels that are the better dealt with through other mechanisms.
This was a significant achievement for FFA members, and should see the WCPFC compliance-monitoring process remain the strongest of all the tuna regional fisheries management organisations (RFMOs). The measure agreed to applies for two years, giving time for additional work to take place on additional elements of the scheme including a refinement of audit points and the development of a risk-based framework.
South Pacific albacore – clear direction for roadmap in 2020
There were two informal meetings, chaired by Fiji, of the small working group to discuss the way forward for South Pacific albacore tuna.
The terms of reference and the work plan for the South Pacific albacore roadmap process were progressed, with a focus on rebuilding stock so that catch rates improve. This will assist in improving the economic viability of the fishery.
The roadmap group will hold two face-to-face meetings in 2020, in the margins of the Scientific Committee meeting in August and the Technical and Compliance Committee meeting in September. This should ensure good progress is made before the Commission considers a revised measure in December 2020.
High-seas limits and allocation – two extra days for WCPFC17
While there was general agreement to the proposal from FFA for the WCPFC to hold a two-day workshop to discuss high-seas limits and a framework for allocating those limits, agreement could not be reached on the terms of reference for a workshop. This highlighted how difficult it is going to be reach agreement on allocation within the Commission, especially since allocation decisions can only be taken by consensus. In the end, WCPFC16 agreed to extend the next annual meeting by two days so that time could be devoted to this issue.
Transhipment – slow progress in the intercessional working group
The Transhipment Intersessional Working Group (IWG), co-chaired by RMI and US, made some good progress, but further work remains to finalise the scope of work for a study to identify weaknesses in the existing measure.
A small number of fishing nations remained concerned about the information that would be made available to conduct the study, and this has unfortunately delayed the process. The IWG will continue its work electronically, with the aim of finalising the scope of work as soon as possible.
Mobulid rays conservation and management measure – new measure adopted
FFA members proposed the draft conservation and management measure (CMM) for mobulid rays (such as manta rays), and this was adopted by the Commission following constructive engagement by Commission members. The measure will come into effect in 2021, to allow Commission members time to promulgate the measure with their fishing industries.
Consolidated sharks CMM
After two years of lengthy negotiations, chaired by Japan, a comprehensive measure on sharks was finally agreed. The new measure rationalises and streamlines reporting that was previously spread across a number of different CMMs. There was also some strengthening of the standards around requirements that fins remain naturally attached to shark carcasses with simplification of alternative measures to ensure that they can be monitored and enforced.
Short-tailed albatross with chicks … one of many species of albatross that face extinction, partly from getting hooked on fishing lines when following fishing vessels. Photo by Jlfutari at Wikipedia (English language version) [CC BY-SA 3.0].
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PORT MORESBY, 10 December 2019 – The Western and Central Pacific Commission (WCPFC) on Monday adopted safe handling guidelines for seabirds, a measure that will help protect seabirds from dying when they are accidentally caught during fishing.
The Seabird Conservation and Management Measure that was adopted in 2018 (CMM 2018-03) was further supported with the Tuna Commission adopting supplementary non-binding guidelines for the safe handling and release of seabirds caught during fishing (known as bycatch).
According to WWF, bycatch in tuna longline fisheries in the Western and Central Pacific Ocean (WCPO) is one of the greatest threats to seabirds, particularly to albatrosses and petrels.
Although there is has been a conservation and management measure for seabirds since 2006, it is estimated that between 13,000 and 19,000 seabirds continue to be caught a year.
The guidelines received unanimous support from member and non-member states attending the 16th annual WCPFC meeting in Port Moresby.
The head of the New Zealand delegation to WCPFC16, Ms Heather Ward, told Pacific reporters here that the protection of seabirds is a priority for NZ, given the diversity of seabirds, particularly albatross and petrel species, around New Zealand in the area south of 25°S.
“New Zealand has the highest global diversity of albatross and petrel species in the world, with several species assessed as being at high or very high risk from commercial fisheries bycatch,” Ms Ward said.
“This is why the protection of seabirds is of great importance to New Zealand.”
She thanked the Pacific Islands Forum Fisheries Agency (FFA) for its support in the adoption of the measure.
The measure is aimed at meeting the requirements of paragraph 11 of CMM 2018-03: to ensure that seabirds captured alive are released alive. When safe handling procedures are implemented, seabirds are more likely to survive.
Ms Ward said the advice has been tailored for the crews of fishing vessel and is available free in multiple languages. The guidelines are simple to follow, and the materials required to safely release seabirds (i.e. a towel or blanket, pliers, net, a box or bin, and gloves) are likely to be available on most longline vessels.
“We hope it will be possible for the WCPFC to adopt these guidelines under Agenda Item 8 as a further step towards the protection of vulnerable seabirds affected by longline fishing,” Ms Ward said.
WWF’s head of delegation to the WCPFC16, Mr Bubba Cook, noted in a media release that the adoption of the guidelines on how to remove hooks from seabirds, developed by the Agreement on the Conservation of Albatrosses and Petrels (ACAP), would lead to less harm to seabirds, especially at the southern end of the WCPO region across all WCPFC longline and other hook fisheries.
“While we are pleased that the WCPFC has taken the important step to implement these voluntary guidelines, we believe that they should be mandatory and subject to clear monitoring and compliance review,” he said.
This message was further enforced by the executive secretary of ACAP, Dr Christine Bogle, who noted that now that the measure is in place, the challenge will be to ensure compliance. ACAP has presented an observer statement to WCPFC16 (WCPFC16–2019–OP08).
“Arguably, the single most important action to reduce bycatch is to increase compliance in the proper use of existing seabird bycatch regulations, such as this CMM 2018-03,” Dr Bogle said.
Yellowfin tuna … stocks of this and other species are a focus of FFA’s platform at WCPFC16. Photo: WWF
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PORT MORESBY, 4 December 2019 – Pacific Islands Forum Fisheries Agency (FFA) members have developed a comprehensive list of priorities for the 16th meeting of the Western and Central Pacific Fisheries Commission (WCPFC16), including climate change as a central plank.
The meeting opens in Port Moresby tomorrow, 5 December.
Forum Fisheries Committee Chair Eugene Pangelinan, of the Federated States of Micronesia, commended FFA members for their strong commitment and solidarity in preparing for WCPFC16, before listing the priorities for FFA Members which include progress on target reference points for key tuna stocks, tightening up monitoring of transshipment on the high seas, improving the process for reviewing compliance with measures, and making progress on high seas limits and management of longline fisheries.
FFA Director-General Dr Manu Tupou-Roosen said FFA members are calling on the Western and Central Pacific Fisheries Commission to take stronger action on climate change.
“Climate change is the defining challenge of our generation and the impact on Pacific Island countries is particularly threatening, given that tuna fisheries provide significant economic, social and cultural benefits,” Dr Tupou-Roosen said.
“FFA is asking for increased attention by Commission scientists on the implications of climate change for the region’s tuna stocks, and consideration of what conservation and management measures (CMMs) can be put in place to reduce the carbon footprint of both Commission activities and fishing in Pacific waters managed by the Commission.
“Our members are proposing a resolution on Climate Change.”
Enhanced consultation between the WCPFC and small island developing states (SIDS) is also a key agenda item for FFA this year.
Mr Pangelinan said that FFA would be pushing in Port Moresby for Commission members to consult more comprehensively with SIDS when proposing new measures.
“Unfortunately, some measures have been presented to the Commission with inadequate assessments of the potential impacts on SIDS. For example, any measure that has significant implementation requirements should be informed by direct consultation with small island developing states,” he said
Mr Pangelinan and Dr Tupou-Roosen concluded by expressing thanks on behalf of FFA to Papua New Guinea for hosting this year’s Commission meeting.
##ENDS##
Further details about key issues for FFA Members at WCPFC16 are in the attached below in the media backgrounder.
Media enquiries: Mr Tevita Tupou, +675 7333 9945
About Pacific Islands Forum Fisheries Agency (FFA)
FFA assists its 17 member countries to sustainably manage fishery resources that fall within their 200-mile exclusive economic zones (EEZs). FFA provides expertise, technical assistance and other support to its members who make decisions about their tuna resources and participate in regional decision making on tuna management. www.ffa.int
Tuna caught in Fiji. Local livelihoods and thriving populations of tuna are at stake. Photo: AFP
Media backgrounder: Summary of key FFA agenda items for WCPFC16
Following are details of FFA’s key priorities at WCPFC16.
The FFC Chair and the FFA Director-General will be available for brief media conferences or interviews during the Commission meeting, as time permits. Please direct requests to Mr Tevita Tupou on +675 7333 9945 or by email to tevita.tupou@ffa.int.
1. Climate change
Tuna fisheries are a critical resource for many Pacific Island countries, providing essential social and economic benefits. The impacts of climate change are particularly severe in the Pacific and place at great risk the benefits of the region’s tuna fisheries for small island developing states (SIDS).
FFA members are therefore calling on the WCPFC to collectively take stronger action on climate change, and will introduce resolution DP04 seeking that the Commission:
Fully recognise the impacts of climate change, in particular on the fisheries, food security and livelihoods of small island developing states and territories.
Take into account in its deliberations, including in the development of conservation and management measures, the impacts of climate change on target stocks, non-target species, and species belonging to the same ecosystem or dependent or associated with the target stocks.
Estimate the carbon footprint of fishing and related activities in the Convention Area for fish stocks managed by the Commission and develop appropriate measures to reduce such footprint.
Develop options such as carbon offsets to decrease the collective carbon footprint of CCMs and the WCPFC Secretariat associated with meetings of the Commission and its subsidiary bodies.
2. Tuna measures
Skipjack tuna
The skipjack target reference point (TRP) is due for review at WCPFC16. FFA members support the Scientific Committee recommendation that the review be informed by the latest stock assessment. This indicates that a spawning biomass depletion ratio of 42% will achieve roughly the same fishery outcomes as the 50% TRP was projected to achieve when it was adopted in 2015.
Therefore, our recommendation is that the Commission adopt a 42% TRP, which is consistent with the level of fishing and the status of the skipjack stock in 2012.
Bigeye and yellowfin tuna
WCPFC16 is due to agree TRPs for yellowfin and bigeye tuna, which will be important in terms of implementing harvest strategies.
FFA members want to maintain bigeye and yellowfin stocks at levels that will create a very low risk of breaching the limit reference points (LRPs), consistent with the UN Fish Stocks Agreement guidelines. They also want modest increases in stock levels, to support ongoing economic management of the purse-seine fishery and to facilitate development opportunities for the SIDS’ longline fisheries.
In the absence of agreement on new TRPs, FFA feels strongly that the current objectives in the Tropical Tuna Measure for Yellowfin and Bigeye must be maintained. We also believe the economic, social and biological implications of the TRPs must be carefully considered, including their interaction with the TRP for skipjack tuna.
Reaching agreement on these TRPs at WCPFC16 is a challenging task, given the diverse objectives of Commission members. If consensus isn’t possible, WCPFC16 needs to clearly identify any further technical work required to support a decision in 2020, and capacity building to ensure all Commission members understand the implications of harvest strategy elements.
South West Pacific swordfish
FFA will encourage WCPFC16 to support advice from the Scientific Committee that current conservation and management measures for Swordfish (CMM 2009-03) need to be strengthened.
Northern stocks
North Pacific swordfish and North Pacific albacore tuna appear to be in relatively good shape, but the Pacific bluefin stock level remains a problem, and this risks the reputation of the WCPFC when the health of other stocks demonstrates good management.
South Pacific Albacore work plan
FFA is seeking renewed focus on the work to build the South Pacific albacore fishery to the TRP agreed in 2018.
FFA has taken the lead in revising the South Pacific Albacore Roadmap work plan, to focus on setting an overall hard limit and on the split of the overall hard limit between the high seas and the exclusive economic zones (EEZs).
The other priority is to ensure that the new measure for South Pacific albacore recognise zone-based management (ZBM), EEZ limits, data collection, and reporting requirements.
3. High seas limits
High seas limits and allocation are also a focus for FFA this year. FFA is providing perspectives to the Commission on the provisions of CMM 2018-01 that commit to limits and an allocation framework for the purse seine and longline fisheries in the high seas. FFA members will promote agreement on a process for 2020 for advancing negotiations on high seas limits, with a view to reaching an agreement at WCPFC17.
FFA members will promote agreement on a process for 2020 for advancing negotiations on high seas limits, with a view to reaching an agreement at WCPFC17.
4. Compliance monitoring scheme
FFA members have worked hard with other Commission members over the last several years in the review of the Compliance Monitoring Scheme. Of high priority in the reform of the scheme is the way in which the Commission reviews the performance of members in implementing their monitoring and enforcement obligations at the national level. FFA members support the Commission’s role in identifying and targeting systemic issues with the implementation of obligations by Commission members and moving away from reviewing and assessing the actions of individual vessels. The core purpose of the Compliance Monitoring Scheme is to review the actions of flag states in respect of their vessel activities, and not of the individual vessels themselves. This approach is taken with a view to promoting and supporting compliance by all members as the foundation for achieving Commission management objectives.
5. Transhipment
FFA members remain concerned about the lack of effective monitoring of transhipment on the high seas, particularly by large-scale freezer longline vessels. This constitutes a significant gap in our ability to monitor and verify longline catches on the high seas, and we consider it to be a high priority issue for the Commission’s work to stamp out illegal fishing.
The FFA is seeking finalisation of the Transhipment Intersessional Working Group’s 2020 work plan, with a focus on identifying gaps in the current measure and defining measures to close those gaps.
Our members will advocate at WCPFC16 for adequate resources for this important work.
6. Harvest strategy
FFA is seeking more detailed economic analyses to support the harvest strategy work plan as it enters a complex stage at WCPFC16. FFA’s position is what while the work plan should be ambitious, it must also be realistic and there is a need for capacity building for SIDS and other Commission members to ensure they fully understand the harvest strategy work and its implications.
One of the key issues before the Commission will be targets for multiple species and how these might be achieved (e.g. harvest-control rules). FFA notes that SC15 endorsed a hierarchical approach for multi-species considerations. Members want further time to consider the implications of this, noting that it is likely to involve changes to the structure of the work plan.
7. Consultation with SIDS
FFA members are concerned about the lack of consultation with SIDS by some WCPFC member nations when proposing new measures to the Commission.
Some measures have been presented to the Commission with inadequate assessments of the potential impacts on SIDS, including implementation costs where additional investment will be required. Impact assessments require consultation and this must take place well in advance of Commission meetings when new proposals are being considered
On another issue, FFA members look forward to receiving the WCPFC Secretariat’s report on the first year of the Strategic Investment Plan.FFA members express appreciation for the voluntary contributions from Australia, Canada, Korea and the United States to the Special Requirements Fund.
8. Electronic reporting and monitoring
FFA views the Electronic Reporting (ER) and Electronic Monitoring (EM) Working Group as extremely important, particularly for the longline fishery where the reporting record of many vessels is poor and independent verification of vessel reporting through observer courage is struggling to reach 5%.
As standards and procedures for ER for both operational catch and observers have now been agreed for two years, FFA believes a date should be set for 100% electronic reporting by all active vessels on the Record of Fishing Vessels (RFV), and by all observers.
We note that many FFA members are implementing ER for fishing within their EEZs, and propose that ER be implemented for all fishing on the high seas by the start of the 2022 fishing year.
The next step is to recommend Commission-wide minimum standards for electronic monitoring (EM). The work that done this year on reviewing data requirements and sources and determining priority gaps, should enable the Working Group to progress this task in 2020.
9. Bycatch
Mobulid ray measure
FFA members are putting forward a proposal for a new measure to prevent targeted fishing and retention, and promote the safe release, of mobulid rays such as manta rays when they are caught by WCPFC fisheries.
10. Charter Notification Scheme
As CMM 2016-05 expires this year, FFA members propose a roll-over of the measure for a further two years. The Charter Notification Scheme is an essential component of WCPFC’s fisheries management framework and facilitates SIDS’ participation in fisheries. For example, chartering provides a mechanism for SIDS to develop their own commercial tuna fisheries in an incremental manner without requiring an unaffordable initial capital investment.
11. Harmful fisheries subsidies
FFA members reiterate the call by Pacific fisheries ministers at the 16th FFC Ministerial Meeting in June 2019 for negotiations to be completed on a new WTO agreement to prohibit harmful fisheries subsidies.
These subsidies can contribute to economic losses in the fisheries sector and distort global fish markets, with serious impacts on food security and livelihoods, particularly in SIDS.
We support the ministers’ view that any outcome should not unnecessarily constrain the ability of SIDS to develop their tuna fisheries and that appropriate differential treatment for SIDS should be an integral part of these negotiations.
Abbreviations
The following acronyms will be in common use during WCPFC16.
