Towards TAC-based Fisheries Management in Korea - Experiences and Challenges

Jungsam Lee

Co-organized with the Republic of Korea's Ministry of Ocean in Fisheries October 2, 2018

1. Production and Policy Goals

2. Introduction of TAC-based Management

3. Expansion and Operation

4. Is TAC-based Management Successful?

5. Current Issues and Future Direction

Contents

1. Production and Policy Goals

Decreasing Capture Fisheries Production

9,043

9,246

0

2,000

4,000

6,000

8,000

10,000

19

50

19

52

19

54

19

56

19

58

19

60

19

62

19

64

19

66

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68

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70

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00

20

02

20

04

20

06

20

08

20

10

20

12

x 1

00

00

M/

T

Aquaculture Capture

170

106

0

50

100

150

200

19

70

19

71

19

72

19

73

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74

19

75

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76

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00

20

01

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07

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09

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11

20

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20

14

20

15

x 1

00

00

M/

T

Aquaculture Coastal & Offshore

World

Korea

*Seaweed included

4

• Vessel construction

and modernization

• Renewing equipments

More Production

• Restructuring started

• Cost reduction

Business Stabilization

• Intensive restructuring

• Stock enhancement

• TAC, Stock Rebuilding

Plan

Sustainable Fisheries

• Increasing harvests • Excessive fishing efforts

• Environmental

contamination

• Decreased fishing grounds

• Decreased fishing

grounds

• Depleted fish stocks

Stagnant period

Declining period

Rapid growth period

(1987 ~ 1996) (1997~Present)(1970~ 1986)

Policy

goals

Environmental

change

Transition of Fisheries Policy Goals

5

2. Introduction of TAC-based Management

Regulation + Promotion + Others

Regulation

Promotion

Technical

Measures

Input Control

Output Control

Size, Season, Fishing

Ground

License, Gear, Vessels

TAC, IQ

Stock

Enhancement

Artificial Reef, Fry

Release, Marine

Ranching, Marine Forest

Others Co-management, Stock Rebuilding

Fisheries Management Instruments

7

Conventional Fisheries Management

Is based on input control and technical regulation

Started with Fisheries Act legislated in 1953

Needed more fishing vessels to increase production(no reason to

regulated output)

Regulation

Technical

Regulation

Input Control

Output Control

Size, Season, Fishing

Ground

License, Gear, Vessels

TAC, IQ

8

Limitations of Korean Conventional

Fisheries Management

• Fish stocks in the coastal water have been depleted

- Decreasing catch(plummeting production of pollock and filefish)

- Decreasing CPUE(catch per horsepower) in overall fisheries

- Increasing proportion of juvenile fish

• Real fishing efforts have increased and offset the effects of vessel and gear restrictions

• Technical regulation methods were not flexible in rapidly changing fisheries circumstances

• Timely assessment of the fish stocks was neglected by excessively concentrating on input restrictions

9

Horsepower per Vessel & Catch per Horsepower

HP

0.20

0.00

0.35

0.10

0.30

0.25

0.50

0.15

M/T

Horsepower per

vessel

Catch per

horsepower

1990 1992 1996 1998 1994

90

0

180

30

150

60

120

10

Main Institutional Change

0

20

40

60

80

100

120

140

160

180

1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015

x 1

00

00

Coastal & Offshore

Fishing vessel

decommission

Agreement on fisheries b/w

Korea and Japan

Agreement on fisheries b/w

Korea and China

Self-regulated fisheries Fisheries rebuilding plan

Fisheries resource

management law

TAC, Marine ranching

Decrease in fisheries landings led to new systems and regulations

Korea started TAC for 4 species in 1999 and expanded to 11 species until 2009

11

3. Expansion and Operation

Expansion of TAC-based Management

Mackerel(large purse seine fishery)1. Pre-test Stage

2. Second Stage

3. Third Stage

(Sep.16 ~ Oct. 30, 1998)

4 species(mackerel, jack mackerel, sardine, Red queen crab)

3 species added(purplish washington clam, pen shell, Jeju island top shell)

2 fisheries(large purse seine, off-shore trap fishery)

2 fisheries(diver fishery, village fishery)

(1999 ~ 2001)

(2001)

2 species added(Snow crab, blue crab)

1 fisheries(off-shore gill net fishery)(2002 ~ 2003 )

3 species added(squid, sandfish, mottled skate)

1 species dropped(sardine)

6 fisheries including large trawl and offshore squid jigging

(2007 ~ 2009 )

13

TAC Determination Criteria

High commercial value with large production volume

- mackerel, jack mackerel, sardine

Conservation Purpose(seriously depleted stocks)

- snow crap, purplish Washington clam, Pen shell

Trans-boundary species

(needs international management with adjacent countries)

- mackerel, jack mackerel, sardine

Necessity of local management

- Jeju island top shell, purplish washington clam, mottled skate

14

SCIENTIFIC STOCK ASSESSMENT & MONITORING, DESIGNATION OF SELLINGAREAS, PROVIDING INCENTIVES TO PARTICIPATING FISHERMEN

TAC Species

Pen shell

Top shellmackerel

Snow crab

Red queen crab

Purplish washingtonclam

Jack mackerel

Blue crab

sandfish

Mottled skate

Common squid

15

Process of TAC Creation by Central Gov.

Establishment of Annual TACImplementation Plan

(Deliberation of theTAC Council)

Deliberation of the CentralFisheries Management Committee

TAC Set-Up

Opinion Collection From Industries

By Fisheries,By Fishing Area,By Fishing Period

Stock Assessment(NIFS)

16

Process of TAC Creation by Regional Gov.

Establishment of Annual TACImplementation Plan

Deliberation of Regional FisheriesManagement Committee

Approval of MOF

TAC Set-Up

Opinion Collectionfrom Industries

By Fisheries,By Fishing Area,By Fishing Period

Opinion Collectionfrom NIFS

17

TAC Allocation System

Allocation for RegionalGovernors

Allocation Plan

Assignment toFishermen

Distribution ofAllocation Certificate

Allocation for Minister

Allocation Plan

Assignment to Fishermen

Distribution ofAllocation Certificate

President of Regional CoopsAnd Fishermen

President of Coops by FisheryAnd Chiefs OfOther Associations

TAC Set-Up

Remaining Quotas can be adjusted by Provincial Gov. depending upon each TAC Species’ or each fisheries’ situation

< 90% of TAC >

< 10% of the

remaining TAC >

< 90% of TAC>

< 10% of the

remaining TAC >

18

TAC Monitoring System

85 observers from FIRA cover 118 designated selling areas

(`00) 9 → (`06) 15 → (`07) 30 → (`09) 43 → (`10∼) 70 → (`18∼) 85

19

TAC Monitoring System

Check landing volume Sample classification

Check bycatch composition

Check size limit

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4. Is TAC-based Management Successful?

21

Plummeting Coastal & Offshore Production

Coastal and offshore production hit the historic low in 2016 since 1972

908 thousand M/T in 2016 and 927 thousand M/T in 2017

('17) : 0.93 million M/T

93

0.0

20.0

40.0

60.0

80.0

100.0

120.0

140.0

160.0

180.0

200.0

1970 19721974 19761978 19801982 198419861988 19901992 19941996 19982000 200220042006 20082010 20122014 2016

x 1

0000M

T

113

140

116

151

자료 : 수산정보포털

22

Causes of Plummeting Production

Overfishing, derelict fishing gear and ghost fishing, climate change and

destruction of marine forest, illegal squid fishing by foreign vessels

Overfishing by Korean vessels’increased fishing capacity(horsepower still increase)

TAC-based management failed to expand and work as central fisheries management instrument(TAC

species cover only 30% of total production)

1,726 1,624

916

100

323

595

443

513

398 437

0

200

400

600

800

0

500

1,000

1,500

2,000

1986

1988

1990

1992

1994

1996

1998

2000

2002

2004

2006

2008

2010

2012

2014

2016

Catch(M/T) Horsepower(hp)

1,000 M/T

Note : Horsepower is recalculated as of 1986

23

Production of TAC Species

Compared with non TAC species, production of TAC species decreased less

- Rapid decrease in 2017 is largely due to decreased squid production caused by

Chinese vessels’overfishing

Note : Catches are recalculated based on the average catches of 2 or 3 years before TAC implementation

76

50

100

150

1999

2000

2001

2002

2003

2004

2005

2006

2007

2008

2009

2010

2011

2012

2013

2014

2015

2016

2017

Non-TAC species(finfish)

Non-TAC species(seaweed exluded)

TAC species

80

62

95

82

0

50

100

150

200

1999

2000

2001

2002

2003

2004

2005

2006

2007

2008

2009

2010

2011

2012

2013

2014

2015

2016

2017

Mackerel Jack mackerel Red queen crap

24

Production of TAC Species

Except for mackerel and squid, overall production of TAC species increased after TAC adoption

186

87

0

100

200

300

400

500

600

1999

2000

2001

2002

2003

2004

2005

2006

2007

2008

2009

2010

2011

2012

2013

2014

2015

2016

2017

Pen shell Snow crap Blue crap

44

163

0

50

100

150

200

250

300

1999 2001 2003 2005 2007 2009 2011 2013 2015 2017

Squid Sandfish

25

5. Current Issues and Future Direction

Current Issues

TAC set higher than stock status

- Even though runout rate is lower than TAC, stock status does not improve

Lack of monitoring : only 70 observers cover118 designated landing places

- Observers : (`00) 9 → (`06) 15 → (`07) 30 → (`09) 43 → (`10∼) 70 → (`18∼) 85

Many fisheries catching TAC species do not participate TAC allocation process

Species 2015 2016 2017

Total 72.6 80.9 61.0

Squid 71.3 68.8 42.4

Mackerel 73.0 96.6 76.8

JackMackerel

75.8 62.9 58.9

Sandfish 58.5 92.4 72.7

Red queen crap

89.1 88.1 73.6

Blue crap 35.4 59.4 63.0

Snow crap 46.7 70.1 102.2

Pen shell 66.3 63.6 75.8

Species Stock status Direction

Mackerel Middle Stagnant

Jack mackerel Middle Stagnant

Squid Middle Stagnant

Sandfish High Increasing

Snow crap Low Stagnant

Blue crap Middle Decreasing

Pen shell Middle Stagnant

Red queen crap High Stagnant

Quota runout rate(%)Stock status

27

Future directionMain Goal

Conventional management failed to reduce increasing fishing capacity

From an additional and formal output management instrument

to a central fisheries management instrument

- Expand TAC species to cover 70-80% of coastal and offshore fisheries production

Future Direction

Expand TAC species and participating fisheries

- Implement TAC to species of which stock decreases(from voluntary participation to

designation of species and relevant fisheries)

- Expansion of participation to fisheries in excess of 10% of TAC fish production

Strengthen dockside monitoring

- increase observers from 85 to 250 to cover 118 main landing places

28

Future directionFuture Direction

Strengthening scientific stock assessment

- Expand role of Fisheries Resources Research Center and build stock assessment

ships(build additional1,500 ton class research ship and increase researchers from

11(2018) to 43(2022))

- Conduct additional stock assessment during extreme catch variation and increase

runout rate of allocated quota

Develop more incentive for fisheries to expand voluntary participation to TAC program

- Introduce income insurance to protect TAC program participating fishermen

29