SF/ 2014/ 46

SMART LICENSING OF ARTISANAL FISHERIES IN THE COASTAL WATERS OF TANZANIA (MAINLAND) WITH EMPHASIS ON SMALL PELAGICS FISHERIES

Martin Van der Knaap Funded by European Union

The designations employed and the presentation of material in this information product do not imply the expression of any opinion whatsoever on the part of Indian Ocean Commission concerning the legal or development status of any country, territory, city or area or of its authorities, or concerning the delimitation of its frontiers or boundaries. The mention of specific companies or products of manufacturers, whether or not these have been patented, does not imply that these have been endorsed or recommended by Indian Ocean Commission in preference to others of a similar nature that are not mentioned. The views expressed in this information product are those of the author(s) and do not necessarily reflect the views or policies of Indian Ocean Commission. © 2014 Indian Ocean Commission

Programme for the implementation of a Regional Fisheries Strategy for the Eastern and Southern Africa – Indian Ocean Region

SMART LICENSING OF ARTISANAL FISHERIES IN THE COASTAL WATERS OF TANZANIA (MAINLAND) WITH EMPHASIS ON SMALL PELAGICS FISHERIES Martin Van der Knaap

Indian Ocean Commission

(OCTOBER-NOVEMBER 2013)

Blue Tower 5th floor, rue de l'Institut Ebene, Mauritius Tel : +230 402 6100 Fax: +230 466 0160 smartfi[email protected] www.coi-ioc.org www.smartfish-coi.org

SF/ 2014/ 46 “ This publication has been produced with the assistance of the European Union. The contents of this publication are the sole responsibility of the author and can no way be taken to the reflect the views of the European Union.”

TABLE OF CONTENTS LIST OF TABLES LIST OF FIGURES ABBREVIATIONS EXECUTIVE SUMMARY SOMMAIRE EXECUTIF INTRODUCTION METHODOLOGY PERFORMANCE IN RELATION TO TOR

PAGE

6 6 7 8 9 12 15 16

ANNEX 1 TERMS OF REFERENCE ANNEX 2 LIST OF PERSONS MET ANNEX 3 LIST OF ACTIVITIES ANNEX 4 DATA FORM FOR MINI FRAME SURVEY 2013

32 35 36 39

ANNEX 5 (DRAFT) SPEECH FOR PERMANENT SECRETARY FOR WORKSHOP OPENING (TRANSLATED INTO KISWAHILI)

40

LIST OF TABLES

Review the registration system of artisanal vessel in Tanzania, with particular emphasis on the artisanal vessels targeting Table 1: Registration and license fees for fishing vessels by size category. Source: Fisheries Regulations (For QA/APP/09-11, pp 137-139) small pelagic fish. 16 1. Determine which vessels register, nationally/ local authority. Table 2: Status of registration of marine fishing vessels by region and district. Source: Frame Survey How many vessels register as a percentage of total vessel, Report, Table 8 in particular for the ringnet fishery. Table 3: Potential revenues from registering and licensing marine fishing vessels by region and district Registration of fishing vessels 16 in 2009 Licensing of fishing vessels 16 Table 4: Number of fishermen per district and the potential revenues from licensing @ US$ 10 per 2. Determine if the license/registration fee is adequate in terms of fisherman per year. norms for licence fees in relation to the value of the catch, Table 5. Numbers of fishermen in 2009 and 2013, the potential license revenues and the collected where does the revenue of the licensing system end up and revenues (license fee at US$ 10). what percentage is re-invested in the fishery. 16 Table 6. Numbers of fishermen in 2009 and 2013, the potential license revenues and the collected Assist in the preparation of procedures to improve licencing and revenues (theoretical license fee at US$ 15). registration of the artisanal fishery, in particular the ringnet fishery 24 Table 7. Numbers of fishermen in 2009 and 2013, the potential license revenues and the collected 1. Detail an improved licencing and registration system for the revenues (theoretical license fee at US$ 20). artisanal fishery, in particular the ring net fishery, including Table 8 Summary of Pelagic Fisheries Survey 2013 aspects of implementation cost, ease of implementation, Table 9 Vessel size distribution in Frame Survey of 2009 revenue generated and revenue sharing and cost recovery Table 10. Revenues collected from licensing by Fisheries Department options available in term of the current legislation. 24 Table 11. Summary of costs of the Coastal Fisheries Frame Survey in 2009 2. Provide recommendation on the implementation of the system 24 and possible changes in policy and legislation (if required) Licensing 28 LIST OF FIGURES Boat registration 28 Role of Beach Management Units (BMUs) DISCUSSION Pelagic fishery SMART money operations Ecosystem Approach to Fisheries

4

30 30 30 30 31

Figure 1. Map of Tanzanian coastline, showing the 16 Districts Figure 2. Evolution of numbers of fishermen by district along Indian Ocean (Tanzania). Source: Frame Survey report, 2009; Mini frame survey 2013. Figure 3. Annual harvest of small pelagic fish in Tanzanian waters (Mainland) Figure 4. Map of RUMAKI area (WWF-Project) showing fishing grounds for small pelagics (Courtesy: WWF Tanzania).

LISTE DES ABREVIATIONS BMU Beach Management Unit DED District Executive Director

SMART LICENSING OF ARTISANAL FISHERIES IN TANZANIA

DFsO District Fisheries Officer

6

DoF Director of Fisheries EAF Ecosystem Approach to Fisheries FAO Food and Agriculture Organization IPOA International Plan of Action LGA Local Government Authority LOA Length Over-All MLFD Ministry for Livestock and Fisheries Development NMSC National Maritime Security Committee PABAKI

Pangani-Bagamayo-Kilomoni area

RUMAKI

Rufiji-Mafia-Kilwa area

SUMATRA

Surface and Marine Transport Regulatory Authority

T.Shs. Tanzania Shillings US$ American dollar WWF World Wide Fund for Nature

Executive summary During October-November 2013 a mini fisheries frame survey was carried out in the districts bordering the Tanzanian coast of the Indian Ocean. Its purpose was to obtain an overview of the distribution of fishermen and fishing vessels along the coast and in order to find out to what extent registration and licensing of fishing vessels and fishermen takes place. The information led to the estimation of potential revenues in case all artisanal vessels and fishermen were licensed. Their registration would be a great step towards combating Illegal, Unregulated and Unreported fishing in Tanzanian waters. The results of the mini frame survey were compared with those of the latest frame survey in 2009. An increase in fishermen and a slight decrease in vessels could be observed. The registration and licensing rates increased from 27 to 37% over a period of four years. It may take long before the entire fleet is registered and licensed. Therefore it is proposed to make use of existing technology, using mobile phones and the so-called “mobile money or smart money” to collect license fees (and registration fees). This system is well known in East Africa and payment points are found in every village and town. This system will guarantee a secure and transparent way of recording licencing information. Upon receipt of the funds the fishermen and fishing vessels will be provided with badges and license plates to demonstrate their compliance with regulations. Analyses have been prepared to indicate the increase in revenues if licence fees could be increased to the equivalents of US$ 15 and US$ 20 per year. These revenues are considerable and would easily meet the initial costs for the establishment of the system. This technological way of revenue collection provides other advantages, too, for instance the creation of a network that allows the distribution of bulk messages to reach thousands of beneficiaries in a short time, to warn for instance against extreme weather conditions, to coordinate search and rescue operations, or to remind fishermen to pay their fees, etc. The results of the mini survey and the proposed system for licensing have been discussed during a workshop in Bagamoyo and the discussions led to a number of recommendations to strengthen the line of command between the Fisheries Department and the District Fisheries Officers, to plough back revenues from fisheries operations into the fisheries sector; to simplify the requirements from another institution responsible for shipping and to test the new system in three districts Pangani, Bagamoyo and Kinondoni (PABAKI). The above system is in line with the latest Fisheries Management Plan for small pelagic fisheries based on the Ecosystem Approach to Fishing that all fishermen and fishing vessels be registered and licensed. The method may apply to the entire artisanal fleet operating in the Tanzanian coastal waters. The SmartFish programme could herewith establish a system of Smart Licenses for Smart fishermen.

7

SMART LICENSING OF ARTISANAL FISHERIES IN TANZANIA

RÉSUMÉ EXECUTIF

8

Pendant la période octobre-novembre 2013 une mini enquête-cadre a été effectuée dans les différents districts sur la façade tanzanienne de l’Océan Indien. Son objectif était d’avoir une idée de la distribution des pêcheurs et leurs bateaux de pêche le long de la côte océanique ainsi que d’avoir une idée des pourcentages des pêcheurs et leurs bateaux enregistrés et licenciés. Cette estimation a servi de guide sur les recettes potentielles au cas que tous les bateaux et pêcheurs artisanaux auraient obtenu leurs licences de pêche. Leur enregistrement serait une bonne action dans la lutte contre les captures illégales, non-déclarées et non réglementées dans les eaux tanzaniennes. Les résultats de la mini enquête-cadre ont été comparés avec ceux de l’enquête-cadre la plus récente, celle de 2009. Le nombre de pêcheurs avait augmenté tandis que le nombre de bateaux de pêche avait légèrement diminué. Le degré de l’enregistrement et du nombre de licences ont été augmentés de 27 à 37% dans une période de quatre ans. Il prendra beaucoup plus de temps avant que toute la flottille soit enregistrée et licenciée. Par conséquent il a été proposé d’utiliser de la technologie existante, en utilisant des portables avec le système intitulé « mobile money » ou « smart money » pour la collecte des revenues des licences et des frais d’enregistrement. Ce système est déjà bien connu en Afrique de l’Est et les points de paiement se trouvent partout dans les villes et petits villages. Ce système appliqué garantit des transactions assurées et transparentes pour l’enregistrement de l’information de licence. Dès que les paiements sont reçus les pêcheurs et les bateaux de pêche seront fournis des « badges » et des preuves d’immatriculation, qui serviront de démonstration que les pêcheurs se conforment aux régulations. Des analyses ont été effectuées pour calculer l’augmentation des revenus potentiels au cas de l’augmentation des frais de licence aux niveaux de US$ 15 et US$ 20 par an (ou leurs équivalents en T.Shs.). Ces revenus sont importants et pourraient facilement supporter les dépenses initiales de l’introduction de ce système. Cette façon de collecte de revenus technologique prévoit d’autres avantages, par exemple la création d’un réseau qui permet la distribution des messages en vrac pour atteindre des milliers de bénéficiaires instantanément pour prévenir contre des conditions de temps extrêmes, pour coordonner des expéditions de secours, ou pour rappeler les pêcheurs de payer leurs frais de licences, etc. Les résultats de la mini enquête-cadre et le système proposé ont été discutés pendant un atelier qui a eu lieu à Bagamoyo. Les discussions ont mené aux plusieurs recommandations pour le renforcement de la ligne de commandement entre le Département des Pêches et les Agents de pêche de district ; également de reverser les bénéfices dans le secteur de pêche ; ainsi que de simplifier les nécessités d’une autre institution responsable de la navigation ; et aussi pour tester le nouveau système aux trois districts Pangani, Bagamoyo et Kinondoni (PABAKI). Le système ci-dessus est en ligne avec le Plan-cadre pour l’Aménagement des Pêches aux petits pélagiques, qui se base sur l’Approche Ecosystémique des Pêches que tous les pêcheurs et bateaux de pêche soient enregistrés et licenciés. Cette méthode peut être appliquée à la flottille artisanale entière qui exploite les eaux côtières tanzaniennes. Le Programme SmartFish serait dans une bonne position de lancer le système de Licences Smart pour les Pêcheurs Smart.

Introduction

SMART LICENSING OF ARTISANAL FISHERIES IN TANZANIA

Introduction

10

The Department of Fisheries, in close collaboration with FAO, applied the Ecosystem Approach to Fisheries and the result was the Management Plan For the Tanzanian Artisanal Fishery for Small and Medium Pelagic Fish Species. The plan identified the following key issue: “Fundamentally open access nature of fishery hampers any effective Monitoring, Control and Surveillance (MCS), no database of fishers and fishing vessels exists”. The subject of the present study is geared towards facilitating the licensing process in order to use the the licensing system as a tool to manage the fishery and to halt the open access character of the artisanal fishery in general, and the small pelagics fishery in particular. The above-mentioned document provides a detailed description of the fishery for pelagic fish resources in Tanzanian waters (mainland). The Tanzanian artisanal fishery targets the small and medium pelagic fish species, using ringnets, purse seines, gillnets, hook-and-line, longlines and trolling lines. The species exploited are the sardines, anchovies, Indian mackerels and jacks and other similar species. The fishermen use dug-out canoes, ngalawas (canoes with outriggers), dhows and boats. The fishery is important for food security, direct employment, auxiliary employment and revenues for Local Government Authorities, and to a lesser extent revenues for the Fisheries Department.

Figure 1. Map of Tanzanian coastline, showing the 16 Districts

The results of the latest fisheries frame survey along the Tanzanian coast demonstrated that that approximately 27% of the vessels and fishermen are registered. Consequently that figure reflects the maximum percentage of the total number of licenses. The current study describes a possible mechanism by which the total number of licenses will increase, and thus the revenues from them. Eventually a total register of vessels and fishermen will be the result, which may be applied for managing the fisheries resources. The requirement to license the fisheries operators will satisfy the need to stop the open access to the fishery, especially when a portion of the revenues are ploughed back into the fishery with the purpose of conducting Monitoring, Control and Surveillance along the Tanzanian coast of the Indian Ocean. The Tanzanian coastline and the riparian districts are presented in Figure 1. Figure 2 presents some of the results of the RUMAKI project, financed by the World Wide Fund (WWF), and implemented in three districts: Rufiji, Mafia and Kilwa. This figure shows the fishing grounds for small pelagic fisheries resources in the study area.

Figure 2 Map of the RUMAKI area (WWF-Project) showing fishing grounds for small pelagics (Courtesy: WWF Tanzania).

11

Catch estimates exist and vary between 25,000 and 45,000 tonnes annually. Figure 3 presents the annual harvest from Tanzanian waters for a number of categories of pelagic fish.

METHODOLOGY

SMART LICENSING OF ARTISANAL FISHERIES IN TANZANIA

The present report is the result of a mission to Tanzania (Mainland) to investigate the feasibility of improving the licensing methods of artisanal fishermen in Tanzanian coastal waters. The Terms of Reference of the study are presented in Annex 1. The lists of activities and persons met are presented in Annexes 2 and 3 respectively.

12

The Fisheries Department conducted a full-fledged frame survey along the coast of the Indian Ocean in 2009. The results of that exercise (Ref) formed the basis for the present study. As the results were already four years old, it may be expected that in the meantime an increase of the fishing capacity took place; the increase in capacity was also observed on other major water bodies in Tanzania, e.g. Lakes Victoria and Tanzania (LVFO 2013; LTA Secretariat 2012). Therefore it was decided to conduct a rapid appraisal of the artisanal fishery in general and the pelagic fishery in particular by sending data forms to the District Fisheries Officers in the 16 districts bordering the Indian Ocean. The form has been discussed with the Fisheries staff involved and the final version of the form is featuring in Annex 4. The results of this mini frame survey are summarized in the next chapter. Based on the numbers of canoes and fishermen according to frame survey 2009 an estimate has been made of the potential revenues from boat registration fees, boat licence fees and fishermen’s licence fees. These values were then compared with the results of the mini frame survey. Figure 3. Annual harvest of small pelagic fish in Tanzanian waters (Mainland)

The sharp decrease in the harvest of small pelagics in 2006 remains unexplained at this point in time. Prior to 2006 the production level remained more or less stable, but since 206, particularly the sardines and anchovies, underwent some fluctuations. These fluctuations may have different causes; apart from environmental and climatic influences, the answer could simply be the high fishing effort exerted on these resources. Therefore, the Management Plan For the Tanzanian Artisanal Fishery for Small and Medium Pelagic Fish Species should be considered a timely measure to further manage these resources. The results of the present study may contribute to the management measures proposed in that plan.

The calculations were made according to the information provided in the Fisheries Regulations 2009. The mini frame survey results were discussed with the 16 District Officers from the coastal area, and staff from the Fisheries Department, during a workshop held in Bagamoyo. A summary of the findings is presented in Annex 5 and the opening speech by (the representative of) the Permanent Secretary of the Ministry of Livestock and Fisheries Development is presented in Annex 6. Discussions were held with telecommunication providers in order to find out whether current technology could be used in transforming the collection of license fees and the registration of fishermen and fishing vessels. One company delegated representatives to the workshop in Bagamoyo to present the possibilities of using mobile phones to pay license fees to central and district accounts.

13

PERFORMANCE IN RELATION TO TOR

SMART LICENSING OF ARTISANAL FISHERIES IN TANZANIA

Review the registration system of artisanal vessel in tanzania, with particular emphasis on the artisanal vessels targeting small pelagic fish.

14

1

Determine which vessels register, nationally/ local authority. How many vessels register as a percentage of total vessels , in particular for the ringnet fishery.

In the first place a distinction has to be made between the registration and licencing of a fishing vessel.

FIN FISH FISHING VESSEL REGISTRATION AND LICENCE US$

US$

Registration fee/vessel

License fee/vessel

Artisanal

10

10

Semi-artisanal

---

10

Semi-commercial

15

10

11.1 to 15.0 meters

 

 

Semi-commercial

50

50

Commercial

50

65

105

100

Up to 11 meters length

15.1-20 meters

Table 1: Registration and license fees for fishing vessels by size category Source: Fisheries Regulations (For QA/APP/09-11, pp 137-139)

Registration of fishing vessels The Fisheries Regulations, 2009 (G.N. No 308. Of 28/8/2009), stipulate (Regulation 4, page 12, Application Form on page 94) that fishing vessels be registered and that their owners should be in possession of a Certificate of Registration of the Fishing Vessel (QA/APP/09, page 165). This regulation applies to all fishing vessels, including dug-out canoes. The revenues from registering the fishing vessels smaller than 11 meters will be collected by the Local Government Authority (LGA) and those from vessels exceeding 11 meters in length over-all (LOA) will be collected by the Department of Fisheries (DoF). Fishing vessels operating in the marine sector may only be registered if they have been issued with a certificate of seaworthiness. All fishing vessels should be assigned an identification mark by a licensing officer. All districts have one Licensing Officer appointed by the District Fisheries Officer (DFsO). The Director of Fisheries approves the registration of vessels with LOA exceeding 11 metres, although the registration fee will be collected by the LGA. All districts will maintain registers of fishing vessels (Form 10, page 114) and the Director of Fisheries will maintain a Central Registry.

The licence fee for a fisherman without boat is US$ 10. The Frame Survey results of 2009 indicated that 73.2% of the fishing vessels were not registered (Frame Survey Report, Table 8). This table is copied as follows: Region

District

Coast

Bagamoyo

   

Registered

Unregistered

% Unregistered

TOTAL

303

109

26.5

412

Mkuranga

59

325

84.6

384

Mafia

79

886

91.8

965

 

Rufiji

115

1254

91.6

1369

 

Sub-total

556

2574

82.2

3130

Dar s Salaam

Ilala

151

71

32.0

222

 

Kinondoni

207

266

56.2

473

Licensing of fishing vessels

 

Temeke

194

295

60.3

489

The Fisheries Regulations stipulate that before an application can be made for a fishing vessel licence, a certificate of seaworthiness must have been issued by the Competent Authority that is responsible for shipping. Fishing vessels longer than 11 metres LOA shall be licenced after written approval of the Director of Fisheries. Vessels below 11 metres LOA need to be inspected by a licensing officer, who issues a licence after having received the appropriate licence fee. The fees for vessels over 11 metres LOA are received by the Fisheries Department and those for vessels shorter than 11 metres LOA are received by the Local Government Authority.

 

Sub-total

552

632

53.4

1184

Lindi

Lindi Urban

27

115

81.0

142

 

Lindi Rural

51

235

82.2

286

 

Kilwa

73

546

88.2

619

 

Sub-total

151

896

85.6

1047

Mtwara

Mtwara Urbn

73

157

68.3

230

 

Mtwara Rural

179

702

79.7

881

 

Sub-total

252

859

77.3

1111

Tanga

Muheza

46

45

49.5

91

 

Mkinga

142

184

56.4

326

 

Pangani

100

171

63.1

271

 

Tanga City

256

248

49.2

504

 

Sub-total

544

648

54.4

1192

TOTAL

 

2055

5609

73.2

7664

2 Determine if the license/registration fee is adequate in terms of norms for licence fees in relation to the value of the catch, where does the revenue of the licensing system end up and what percentage is re-invested in the fishery. The applicable licence fees for the fisheries under study are summarized as follows (Source: The Fisheries Regulations, 2009; (For QA/APP/11), pp. 138-139):

Table 2: Status of registration of marine fishing vessels by region and district Source: Frame Survey Report, Table 8

15

SMART LICENSING OF ARTISANAL FISHERIES IN TANZANIA

As a matter of definition the boat category of 10 m and above, as presented in the Frame Survey Report, cannot be considered the equivalent of the boats of 11 m and above. The registration and licence fees are different for boats smaller than 10 m and for boats of 11 m and more. In other words the boats with a length between 10 and 11 m are comprised in the frame survey’s category of 10 m and above, but for these boats other fee rates apply than for the longer boats. In order to arrive at a figure for estimating the order of magnitude of the potential revenues the fee rates of the smaller boats have been applied. The results are presented in Table 3.

16

The following table shows the potential amount in revenues could have been collected if all boats had been registered, assuming a registration fee of US$ 10 per vessel, as the frame survey report does not provide the breakdown of registered vessels smaller or larger than 11 meters LOA. In 2009 the total estimate of losses to revenues for registration alone amounted to US% 56,090. The same table shows the potential revenues from vessel licenses in case all vessels had been issued a license at the rate of US$ 10 per boat per year. This amounted to US$ 76,600 for the year 2009. The actual amount of vessel licensing payments is not known as the licensing rate was not known in 2009. It may be concluded, however, that non-registered boats were not licensed in that year. Vessel Registration and License fees @ USD 10 Region

District

Potential Registration Revenues

Actually Received (over certain period)

 Losses to Revenues

Potential Annual License Revenues

From Table 3 it may be concluded that, assuming that 73% of the fishermen were not licensed in 2009, the total losses due to non-registration of the marine artisanal fleet and non-licensing of that same fleet amounted to at least two times US$ 56,090 or US$ 112,180. Assuming that none of the fishermen were licensed in 2009 at the rate of US$ 10 per fisherman per year, then the total losses would amount to US$ 293,120 as per Table 4. As the vessel non-registration rate was of the order of 73.2 % in 2009, a total revenue of US$ 78,556 might have been realized. It should be taken into account that this total amount may have been collected in different districts over a number of years. It may be difficult to find out in which years the vessels were registered. Obviously, the emphasis at present will be to register the remainder of the fleet and generate revenues from that registration exercise.

US$ 10 per fisherman per year  Region

District

Fishers

Potential Annual Revenues

Coast

Bagamoyo

1462

14620

 

Mkuranga

1434

14340

 

Mafia

3502

35020

 

Rufiji

3556

35560

 

Sub-total

9954

99540

Dar es Salaam

Ilala

1331

13310

 

Kinondoni

2490

24900

 

Temeke

3351

33510

 

Sub-total

7172

71720

Lindi

Lindi Urban

376

3760

 

Lindi Rural

865

8650

 

Kilwa

2920

29200

4161

41610

821

8210

Coast

Bagamoyo

4120

3030

1090

4120

 

Mkuranga

3840

590

3250

3840

 

Mafia

9650

790

8860

9650

 

Rufiji

13690

1150

12540

13690

 

Sub-total

31300

5560

25740

31300

Dar s Salaam

Ilala

2220

1510

710

2220

 

Kinondoni

4730

2070

2660

4730

 

Temeke

4890

1940

2950

4890

 

Sub-total

11840

5520

6320

11840

 

Sub-total

Lindi

Lindi Urban

1420

270

1150

1420

Mtwara

Mtwara Urban

 

Lindi Rural

2860

510

2350

2860

 

Mtwara Rural

2278

22780

 

Kilwa

6190

730

5460

6190

 

Sub-total

3099

30990

 

Sub-total

10470

1510

8960

10470

Tanga

Muheza

233

2330

Mtwara

Mtwara Urbn

2300

730

1570

2300

 

Mkinga

1652

16520

 

Mtwara Rural

8810

1790

7020

8810

 

Pangani

740

7400

Tanga City

2301

23010

4926

49260

29312

293120

 

Sub-total

11110

2520

8590

11110

 

Tanga

Muheza

910

460

450

910

 

Sub-total

 

Mkinga

3260

1420

1840

3260

TOTAL

 

 

Pangani

2710

1000

1710

2710

 

Tanga City

5040

2560

2480

5040

 

Sub-total

11920

5440

6480

11920

TOTAL

 

76640

20550

56090

76640

Table 4: Number of fishermen per district and the potential revenues from licensing @ US$ 10 per fisherman per year.

Table 3: Potential revenues from registering and licensing marine fishing vessels by region and district in 2009

17

SMART LICENSING OF ARTISANAL FISHERIES IN TANZANIA

US$ 10

18

Per year

 

 

2013

2013

2013

2009

2013

Potential

Potential

Collected

Fishers

Fishers

Revenues

Revenues

Revenues

 

 

Region

District

Coast

Bagamoyo

1462

1714

17140

27,424,000

4,388,000

 

Mkuranga

1434

2279

22790

36,464,000

4,163,500

 

Mafia

3502

1749

17490

27,984,000

36,729,000

 

Rufiji

3556

4247

42470

67,952,000

4,000,000

 

Sub-total

9954

9989

99890

159,824,000

49,280,500

Dar s Salaam

Ilala

1331

1331

13310

21,296,000

12,663,000

 

Kinondoni

2490

2513

25130

40,208,000

13,170,900

 

Temeke

3351

2800

28000

44,800,000

9,739,700

 

Sub-total

7172

6644

66440

106,304,000

35,573,600

Lindi

Lindi Urban

376

801

8010

12,816,000

4,120,000

 

Lindi Rural

865

1800

18000

28,800,000

800,000

 

Kilwa

2920

3500

35000

56,000,000

11,700,800

 

Sub-total

4161

6101

61010

97,616,000

16,620,800

Mtwara

Mtwara Urbn

821

642

6420

10,272,000

642,000

 

Mtwara Rural

2278

4819

48190

77,104,000

6,544,500

 

Sub-total

3099

5461

54610

87,376,000

7,186,500

Tanga

Muheza

233

224

2240

3,584,000

2,203,000

 

Mkinga

1652

2086

20860

33,376,000

5,200,000

 

Pangani

740

1321

13210

21,136,000

1,329,400

 

Tanga City

2301

2250

22500

36,000,000

26,876,100

 

Sub-total

4926

5881

58810

94,096,000

35,608,500

TOTAL

 

29312

34076

340760

545,216,000

144,269,900

SHORTFALL

400,946,100

US$

250,591

Table 5. Numbers of fishermen in 2009 and 2013, the potential license revenues and the collected revenues (license fee at US$ 10).

Table 5 presents the number of fishermen in 2009 and 2013. In some cases the same figures are used for 2013 as for 2009. This implies that the datasets are incomplete and have not been updated since. Applying the US$ 10 fee per fisherman per year a total potential revenue of US$ 340,760 could be realized, which is the equivalent of T. Shs 545,216,000. The survey yielded revenue figures for 2013 amounting to T. Shs. 144,269,900, leaving a negative balance of T. Shs. 400,946,100 or US$ 250,591. This amount does not include the license fees for fishing vessels.

Figure 4. Evolution of numbers of fishermen by district along Indian Ocean (Tanzania). Source: Frame Survey report, 2009; Mini frame survey 2013.

Table 5 furthermore presents the number of fishermen in each district in 2009 and 2013. The total number of fishermen increased by 4764 (16%), but the different districts show considerable fluctuations in their numbers of fishermen as presented in Figure 4. Whilst the total number of fishermen in the Coast and Dar es Salaam Regions remained somehow stable, the other three regions experienced strong increments of fishermen between 2009 and 2013. Striking changes in the numbers of fishermen between 2009 and 2013 may be observed in Mafia District, a strong reduction, and in Mtwara Rural, where a strong increased was observed in the same period (Figure 4). Relatively strong increments have been reported from Lindi Urban, Lindi Rural and Pangani. Geographically it may be concluded that the southern districts underwent a sharp increase in the number of fishermen (Lindi Urban, Lindi Rural and Mtwara Rural).

19

SMART LICENSING OF ARTISANAL FISHERIES IN TANZANIA

US$ 15

20

Per year

 

 

2013

2013

2013

2009

2013

Potential

Potential

Collected

 

 

Fishers

Fishers

Revenues

Revenues

Revenues

Region

District

Coast

US$ 20

Per year

 

 

2013

2013

2013

2009

2013

Potential

Potential

Collected

Fishers

Fishers

Revenues

Revenues

Revenues

Bagamoyo

1462

1714

34280

54,848,000

4,388,000

 

Mkuranga

1434

2279

45580

72,928,000

4,163,500

 

Mafia

3502

1749

34980

55,968,000

36,729,000

 

Rufiji

3556

4247

84940

135,904,000

4,000,000

 

Sub-total

9954

9989

199780

319,648,000

49,280,500

Dar s Salaam

Ilala

1331

1331

26620

42,592,000

12,663,000

 

Kinondoni

2490

2513

50260

80,416,000

13,170,900

 

Temeke

3351

2800

56000

89,600,000

9,739,700

 

Sub-total

7172

6644

132880

212,608,000

35,573,600

Lindi

Lindi Urban

376

801

16020

25,632,000

4,120,000

865

1800

36000

57,600,000

800,000

 

 

Region

District

Coast

Bagamoyo

1462

1714

25710

41,136,000

4,388,000

 

Mkuranga

1434

2279

34185

54,696,000

4,163,500

 

Mafia

3502

1749

26235

41,976,000

36,729,000

 

Rufiji

3556

4247

63705

101,928,000

4,000,000

 

Sub-total

9954

9989

149835

239,736,000

49,280,500

Dar s Salaam

Ilala

1331

1331

19965

31,944,000

12,663,000

 

Kinondoni

2490

2513

37695

60,312,000

13,170,900

 

Temeke

3351

2800

42000

67,200,000

9,739,700

 

Sub-total

7172

6644

99660

159,456,000

35,573,600

Lindi

Lindi Urban

376

801

12015

19,224,000

4,120,000

 

Lindi Rural

 

Lindi Rural

865

1800

27000

43,200,000

800,000

 

Kilwa

2920

3500

70000

112,000,000

11,700,800

 

Kilwa

2920

3500

52500

84,000,000

11,700,800

 

Sub-total

4161

6101

122020

195,232,000

16,620,800

4161

6101

91515

146,424,000

16,620,800

Mtwara

Mtwara Urbn

821

642

12840

20,544,000

642,000

 

Mtwara Rural

2278

4819

96380

154,208,000

6,544,500

 

Sub-total

3099

5461

109220

174,752,000

7,186,500

Tanga

Muheza

233

224

4480

7,168,000

2,203,000

 

Mkinga

1652

2086

41720

66,752,000

5,200,000

 

Pangani

740

1321

26420

42,272,000

1,329,400

 

Tanga City

2301

2250

45000

72,000,000

26,876,100

 

Sub-total

4926

5881

117620

188,192,000

35,608,500

TOTAL

 

29312

34076

681520

1,090,432,000

144,269,900

Sub-total Mtwara

Mtwara Urbn

821

642

9630

15,408,000

642,000

 

Mtwara Rural

2278

4819

72285

115,656,000

6,544,500

3099

5461

81915

131,064,000

7,186,500

Sub-total Tanga

Muheza

233

224

3360

5,376,000

2,203,000

 

Mkinga

1652

2086

31290

50,064,000

5,200,000

 

Pangani

740

1321

19815

31,704,000

1,329,400

 

Tanga City

2301

2250

33750

54,000,000

26,876,100

 

Sub-total

4926

5881

88215

141,144,000

35,608,500

TOTAL

 

29312

34076

511140

817,824,000

144,269,900

SHORTFALL

673,554,100

US$

420,971

Table 6. Numbers of fishermen in 2009 and 2013, the potential license revenues and the collected revenues (theoretical license fee at US$ 15).

SHORTFALL

946,162,100

US$

591,351

Table 7. Numbers of fishermen in 2009 and 2013, the potential license revenues and the collected revenues (theoretical license fee at US$ 20).

The license fee amounts for fisherman and vessel, compared to the total proceeds of the annual catch per fisherman or fishing vessel are negligible. That does not imply that a fisherman on any given day can pay up the equivalent of US$ 10. Fishermen may prefer to pay the fees in installments.

21

Assist in the preparation of procedures to improve licencing and registration of the artisanal fishery, in particular the ringnet fishery

SMART LICENSING OF ARTISANAL FISHERIES IN TANZANIA

1

22

Detail an improved licencing and registration system for the artisanal fishery, in particular the ring net fishery, including aspects of implementation cost, ease of implementation, revenue generated and revenue sharing and cost recovery options available in term of the current legislation.

The registration and licensing rate in 2009 appeared to be low: around 27% of the fishing vessels were registered and as a result the licensing rate did not exceed that figure. According to the mini frame survey conducted in 2013 the rate would have been slightly improved to about 37%. The major obstacle is the lack of funding of the DFsOs and their staff to organize licensing campaigns and visit landing sites for the collection of revenues. In case such exercises are held relatively large sums are collected in cash, which need to be deposited the same day for security reasons. It is proposed to introduce a system whereby the transfer of cash is replaced by electronic fund transfers through mobile phones. Although the exact figures are not known, it is assumed that practically all fishermen possess mobile phones or have access to them. In case the mobile phones are used for money transfers, i.e. for payment of license fees, then statements from the telecom service providers and bank statements will show the fisherman’s identification number, amount paid in, date and time of payment, etc. This provides sufficient information to monitor license fee payments and at the same time a database may be established of all fishermen and their respective coordinates and other basic information relevant for fisheries monitoring (boat or gear ownership, type of gear, etc.). In that way the fisheries staff will obtain complete registers of fishermen and vessels. The so-called mobile money services are already widely utilized, thus will not demand additional introduction or awareness generation. Obviously awareness among fishermen will have to be generated that such license fee payments are required to obtain a license, which gives access to the fishing grounds. Furthermore, it may be considered to allow fishermen to pay their dues in instalments as the amount of US$ 10 may not be payable on any given day. Questions may arise how the fishermen obtain their proof of license once the payment has been made. As all information will be computerized, it will be relatively simple to print a plastic weather-proof badge, showing the details of the fisherman, the year of validity (colours differ every year), a colour code for gear operated, etc. Once the fisherman has made the payment he would wish to receive his badge. The distribution of badges could be realized through the DFsOs and their staff, but also through the BMUs, or a combination of the two options. The advantages of complete revenue collection have been described above. Annually the losses from unpaid license fees are considerable. Such revenues would be to the benefit of the district administration for different development activities. The workshop that was held in Bagamoyo revealed unanimously that the revenues are not ploughed back into the fisheries sector. In two districts some operational funds were obtained from the District Executive Director (DED) and the immediate effect was that the DFsOs collected much more revenues than elsewhere along the coast. In other words it pays off if the DED would assist the DFsOs through the provision of operational funds. Once a mobile-money collection system is in place the revenues of the DEDs will increase considerably and then a certain distribution formula could be agreed upon, so that a percentage may be used for fisheries monitoring purposes and as incentives for BMUs to fund various management operations (to be specified).

PELAGIC FISHERIES SURVEY 2013

 

 

TOTAL

 

Number of Fisheries Staff

94

 

Number of Landing Sites

188

 

Number of BMUs

158

 

18

 

11 METERS

Total Number of Vessels

7399

50

Number of Registered Fishing Vessels

3063

0

23

0

Number of Dug-out canoes

3129

0

Number of Ngalawas

1977

0

Number of Dhows

998

0

Number of Boats

817

0

11 METERS

Total Number of Registered Pelagic Fishing Vessels

1955

30

Total number of Dug-out canoes

2002

0

Ngalawa

1476

0

Dhow

687

0

Boat

647

0

1148

 

Number of Gillnets

17420

 

Lines (handline/longline)

DISTRICT NAME

Number of Registered BMUs VESSELS  

Number of Registered Fish Transport Vessels

PELAGIC FISHING VESSELS 

FISHING GEARS FOR PELAGICS   Number of Purse Seines/Ringnets

12004

 

Sharknet

359

 

Castnet

844

 

Total Number of Fishermen

34076

 

Number of Licensed Fishermen for Pelagic Fish

10791

 

Number of Licensed Fishermen for Other Fish

1858

 

REVENUES

TSHS

USD

144,269,900

90,169

31,646,350

19,779

175,916,250

109,948

FISHERMEN  

Revenues from Fishermen Licenses in 2013 Revenues from Boat Licenses in 2013 TOTAL REVENUES FROM LICENSES IN 2013

TABLE 8 SUMMARY OF PELAGIC FISHERIES SURVEY 2013 Table 8 presents the summary of the data forms that had been completed by the DFsOs. It is clear that there were some complications while completing the forms.

23

Some DFsOs did not make any distinction between general fishing vessels and vessels for pelagic

SMART LICENSING OF ARTISANAL FISHERIES IN TANZANIA

fishing. As a result the total numbers of boats are not matching with the totals of the components. This is regretful, but in general it is believed that the trends are correct, i.e. an increase in numbers of fishing boats and fishermen as compared to 2009. Therefore it is not correct to carry out a similar analysis as for the fishermen. Suffice it to state that about 37% of the vessels have been registered and licensed, thus a crude calculation may be made. In 2009 the losses were calculated at US$ 56,000. The losses would be less in 2013 as the number of boats decreased to 7449.

24

A clear indication of the importance of the pelagic fishery is the number of purse seines in use in 2013, viz. 1148. Also of interest is the number of sharknets, for a country that signed the International Plan of Action to protect shark resources (IPOA Shark). During the workshop in Bagamoyo it appeared that there was confusion about the distinction between vessels larger and smaller than 11 meters. The number of vessels reported in the Frame Survey report (larger than 10 meters) is much higher than the reported 30 vessels in 2013. The DFsOs suspected that in 2009 also transport vessels were included and that the number of fishing vessels over 11 meters LOA is much lower. Another explanation could be that it was considered too much of a complication to apply for a licence from the Fisheries Department in Dar es Salaam and that the vessel size was overlooked for the purpose of licensing the boat. In that case, of course, the license fee ended up in the district account. This deserves attention during further studies. The Frame Survey 2009 results are presented in Table 9. This table was not presented in the Frame Survey Report but originates from the database at the Fisheries Department. FRAME SURVEY 2009

Vessel size

Region

District

0-5 m

6-10 m

>= 11 m

Coast

Bagamoyo

198

206

5

 

Mkuranga

190

147

24

 

Mafia

676

225

44

 

Rufiji

513

296

29

 

Sub-total

1577

874

102

Dar es Salaam

Ilala

99

56

59

 

Kinondoni

213

173

36

 

Temeke

224

217

31

 

Sub-total

536

446

126

Lindi

Lindi Urban

97

44

1

 

Lindi Rural

190

73

1

 

Kilwa

307

173

36

 

Sub-total

594

290

38

Mtwara

Mtwara Urban

187

25

18

 

Mtwara Rural

549

133

156

 

Sub-total

736

158

174

Tanga

Muheza

24

43

 

Mkinga

127

 

Pangani

133

 

Tanga City

  TOTAL

The revenues generated from licensing at the Fisheries Department are presented in Table 10. This table indicates the small numbers of fishing boats exceeding 11 meters LOA that are licensed at the Fisheries Department. The numbers of boats of 11m and longer differ considerably in 2009 and 2013. The potential revenue based on the figure from 2009 could be of interest for the Fisheries Department, but in case of the figure in 2013 the potential amount would be too small to become interesting.  

Vessels

Year

License fees

Sport

License fees

>=11 meters

T. Shs

US$

Fishing boats

T. Shs

US$

2010-2011

12

1070600

669

 

 

 

2011-2012

6

854820

534

5

559810

350

2012-2013

9

773000

483

6

636800

398

Table 10. Revenues collected from licensing by Fisheries Department

An interesting achievement of the mini frame survey is a clear indication of the amounts of money collected for licensing, about US$ 110,000. Whilst discussing the license fees during the workshop there appeared to be variation in the license fees for fishermen, ranging from T.Shs. 10,000 in Mtwara (as fishermen are considered poor) to T.Shs. 20,000 in Temeke and Lindi Districts. In comparison with the regulated US$ 10 (or T.Shs. 16,000) these deviations are important. The majority of the DFsOs reported, however, that they apply the equivalent of US$ 10. It was learned from some DFsOs that license fees were also obtained from fishermen who originated from other districts. This implies that from licensing operations, in fact more funds could be generated than the amounts calculated in Tables 5, 6 and 7. Implementation costs of the entire exercise may exceed the frame survey costs of 2009, which features in Table 11. In case the fishermen need to be registered then the time in the field may need to be longer than in 2009. Also data entry may require more time. Upon data entry (and checking) the badges will have to be printed, which will involve extra costs. Therefore a crude estimate may result in two times the total amount in Table 11: T.Shs. 150 million. When payments are made then the bank statement or service provider statement needs to be linked to the fishermen’s register, applying relational databases. The services of a database consultant may be required to build the database. Summary budget of Frame survey 2009 Activity

T.Shs. Total

Pre meeting of preparation

8,160,000

Training of supervisors

3,128,000

Advertisement

1,800,000

Training of data enumerators

13,615,000

10

Actual Frame survey

28,104,000

173

11

127

1

Data entry

13,565,000

200

270

5

Sub-total

484

613

27

 

3927

2381

467

Table 9 Vessel size distribution in Frame Survey of 2009

Report writing GRAND TOTAL

6,695,000 75,067,000

Table 11. Summary of costs of the Coastal Fisheries Frame Survey in 2009

25

2

Provide recommendation on the implementation of the system and possible changes in policy and legislation (if required)

SMART LICENSING OF ARTISANAL FISHERIES IN TANZANIA

Licensing

26

The artisanal fishery is characterized by a low degree of licensing, both vessels and fishermen. Since 2009 little improvement has been observed, but there is still much room to increase the licensing rate. It has been proposed to use mobile money to generate maximum revenue for the District Administration through licensing of fishermen and vessels. In the above chapter the potential revenues have been calculated and presented. The system of the fisheries administration is quite complex. The Fisheries Department and its staff are under the Ministry of Livestock and Fisheries Development, whereas the District Fisheries Officers and their staff are under the Ministry for Local Government and Regional Administration. The line of command is therefore not very logical as the DFsOs report to the District Executive Director and not to the Director of Fisheries. The principal task of the DFsOs is to collect revenues for the DED, not only from licensing but also from fish sales at auctions and fish markets. The revenues from fisheries cannot be ignored; they contribute to a large extent to the operational expenditure of the District Administration, but not at all, in most cases, to the fisheries sector.

RECOMMENDATION: It is recommended that negotiations be undertaken between the Ministry of Livestock and Fisheries Development and the Ministry of Local Governance and Regional Administration to agree that a certain percentage of the revenues from the fisheries sector are ploughed back into the same sector in order to become more alert for anomalies in the fishery, to stop illegal fishing (including the use of explosives), to better monitor and control movements of fishing boats, etc. RECOMMENDATION: It is also recommended that the line of command from Fisheries Department to District Fisheries Officers be strengthened. It is felt that the flow of information is critically perturbed due to the fact that the superiors of the DFsOs are not in Fisheries any longer. It would be beneficial for the fisheries managers if this line of command could be restored. This may not be an overnight decision and will definitely have consequences for the fisheries act and regulations. All fisheries stakeholders are in agreement that the present situation is not conducive to appropriately and adequately monitoring and controlling of the fisheries.

RECOMMENDATION: It was further recommended by the workshop participants that the licensing year be synchronized with the financial year (i.e. from July to June).

Boat registration During the mission a visit was paid to the office of SUMATRA (Surface and Marine Transport Regulatory Authority). Particularly after the discussions during the Bagamoyo workshop about the vessel inspections by SUMATRA, it was decided to find out more about the Regulations related to the registration and inspection of vessels, as mentioned by some of the District Fisheries Officers SUMATRA has a link to the Ministry of Transport and issues licenses to ‘’float’’ or ‘’move’’ in Tanzanian waters (both freshwater and marine). The Maritime Shipping Act was revised entirely after the MV BUKOBA accident on Lake Victoria in 1996. The new Maritime Shipping Act, 2003, repealed the MSA, 1967 and the Inland Water Transport Ordinance. Certain confusion exists with respect to the terms Registration, License and Survey. The category “Small Vessels” does NOT require registration by SUMATRA. Small vessels are shorter than 24 m LOA and/or smaller than 50 GRT (i.e. basically the entire artisanal fleet operating in coastal waters). However, such Small Vessels DO require a so-called Local Safety Certificate. The first inspection for unmechanized (or non-

motorized) vessels smaller than or equal to four meters costs US$ 5 or its equivalent in T. Shs. This inspection has to be repeated annually. The costs for the same category of boats (