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
19
68
19
70
19
72
19
74
19
76
19
78
19
80
19
82
19
84
19
86
19
88
19
90
19
92
19
94
19
96
19
98
20
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
19
74
19
75
19
76
19
77
19
78
19
79
19
80
19
81
19
82
19
83
19
84
19
85
19
86
19
87
19
88
19
89
19
90
19
91
19
92
19
93
19
94
19
95
19
96
19
97
19
98
19
99
20
00
20
01
20
02
20
03
20
04
20
05
20
06
20
07
20
08
20
09
20
10
20
11
20
12
20
13
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
20
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