WEST AFRICA: THE FISHERIES DILEMMA

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP88B00443R002004490073-6
• Release Decision: RIPPUB
• Original Classification: K
• Document Page Count: 18
• Document Creation Date: December 22, 2016
• Document Release Date: June 29, 2011
• Sequence Number: 73
• Publication Date: June 1, 1986
• Content Type: REPORT

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West Africa: The Fisheries Dilemma
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1 st Africa: T2* Fisheries Diilena
Heavy, often unrestrained exploitation of fish by Soviet and other non-
African vessels poses a growing threat to West Africa's marine fishery
resource. Stocks of some of the main commerical species are in danger of
depletion. A marked decline in these fisheries would further weaken the
economies of several West African states for wham they provide an important
source of foreign exchange. Destruction of a valuable supply of protein would
also be a grave loss to this food deficient region. Yet many coastal states
lack the manpower and equipment necessary to prevent abuses.
Soviets and other non-Africans continue to be the main beneficiaries of
the region's rich fisheries, harvesting almost 60 percent of the annual
catch. The Soviets take 10 percent of their national catch in West African
waters and derive both economic and political benefits from fishing agreements
with regional countries.
Increasing awareness of the threat to marine resources, deteriorating
economic conditions, and a greater concern for food security among West
African states make prospects for remedial actions more favorable now than at
any time during the recent past. A number of countries would welcome Ws stern
assistance in the management of their fisheries.
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OK Morocco
NORTHERN ?--.j
Canary
t f y r~/ ///
ZONE Islands vs
(Spain) Palo=
Western
Sahara
4 Nooad-i-oa
M
auritania
I.- NOUAKCHOTT
MG
("RABAT
Cau-loou
SOUTHERN ZONE
1K Coastal Crustacea
pelagic
Major shipping lane
200-nautical-mile maritime zone
Catch Composition
(1983 Volumes)
by percent
Mixed
12.9
Cephalopod
5.9 -
Crustacea
1.0 -
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Intzoducti,on
The waters off %' st Africa support care of the richest concentrations of
marine life in the world. Fisheries not only represent an important source of
foreign exchange for a number of financially strapped coastal states, but
provide the generally malnourished region with much needed protein. The
limited ability of these states to exploit, manage, and police their offshore
waters allows heavy, often unrestrained, exploitation by Soviet and other
foreign fishing fleets. In fact, foreigners harvest about 60 percent of the
reported catch, while the region as a whole remains a net importer of fish-
many of which are caught in regional waters.
Fishery experts believe that all of the major and many of the minor
species are fully- to over-exploited, and are concerned that valuable breeding
stocks are being endangered by illegal fishing techniques. There is also fear
that unrestricted exploitation will result in a depletion of resources
similiar to that which has occurred off the coast of Namibia. The ability of
the littoral states in the region to provide the equipment, manpower, or funds
necessary to effectively enforce legal restrictions on fishing is limited.
Nbst of the states failed to develop appropriate management policies or to
support such policies with adequate technical and administrative personnel.
The Soviets can use fishing agreements in West Africa to gain legitimate
commercial access to ports, onshore facilities, and local institutions. A
number of coastal states continue to maintain agreements with the Soviets
despite suspicions that they are being cheated either through underreporting
catches or through agreements which deprive them of scarce foreign exchange
earnings. Several are dissappointed with the nature and level of assistance
provided under these agreements.
Besides the USSR, non-African countries with substantial fishing
capabilities in the region include Spain, South Korea, East Germany, Romania,
and France. Of the Africans, only t.brocco, Nigeria, Ghana, Ivory Coast, and
Senegal have sizable industrial fleets. Throughout most of the region,
traditional fishermen using small craft supply fish for domestic consumption.
Western interest in development and management of the marine fisheries is
primarily humanitarian. Fish represent a readily available and ecologically
sound source of additional protein for an area beset by recurrent drought and
famine, and by chronic economic difficulties. Pn improvement in the ability
of these countries to harvest and manage their fisheries would help conserve a
valuable protein source, and provide additional foreign exchange for the
region's bankrupt economies.
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CATCH BY COUNTRY
1983
GDR
1.7%
ROMANIA
1.7%
SPAIN
10.7%
FRANCE
1.9%
SOU1H KOREA
2.0%
USSR
30.5%
ALL OTHER
MOROCCO // ;I/T- 8.7%
13.7%
SENEGAL
7.3%
MAURITANIA
1.4%
GABON
-1.6%
%
NIGERIA IVORY COAST
9.7%
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2.6%
GHANA
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The Fishery Resource
The distribution of fish within West African waters is uneven, but two
distinct zones are apparent: a Northern zone extending from Morocco through
Liberia, and a Southern zone extending fran the Ivory Coast through Zaire.
(See Map) The richest concentrations of fish occur off the northwest coast;
waters to the south are less productive. Fb reign fishing vessels operate
primarily in the north, but find markets for their harvest among the more
heavily populated countries of the south.
Five major types of fish are harvested:
Coastal pelagic species (sardines, sardinella, mackerel, etc.) account
for about 60 percent of the region's catch by volume. FLzavy exploitation of
these species by Soviet and East European fleets as well as by local
traditional fishermen in the Northern zone is placing stress on existing
stocks. Management is difficult because of the migratory habits of the
species.
Cephalcpods (cuttlefish, squid, and octopus) make up the region's most
valuable catches. The main cephalopod grounds lie in the Northern zone off
Morocco, Mauritania, and Senegal. Spanish, Moroccan, South Korean, and
Mauritanian vessels harvest most of the catch which is then marketed mainly in
Europe and Japan. Signs of overexploitation have been reported.
Crustacea (mainly shrimp) are found mostly near river mouths and are
fully exploited in both zones. Spanish and other non African vessels harvest
about half the total catch. Senegal exports significant amounts. The
extensive involvement of traditional as well as industrial fishermen in
shrimping makes proper management of the stocks difficult.
Demersal fish (bottan-dwellers including seabream, hake, croakers, sole)
are heavily exploited in the Northern zone by Spanish, Portuguese, Soviet, and
African industrial vessels. In the Southern zone African fishermen exploit
stocks in the inshore areas, but fishery experts see roan for expansion
offshore. Good management of this fishery is feasible because of the limited
involvement of traditional fishermen.
Ocean pelagic species (tuna) form an important resource for the African
industrial fleets with both Ghana and the Ivory Coast harvesting significant
amounts. Spanish and French vessels, using Abidjan, Ivory Coast as their main
regional base, are also active. Prospects for good fishing in the Indian
Ocean could draw more French, Spanish and other vessels out of Vilast African
waters.
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Non-African Involvement
Despite a gradual decline in it numbers during the past decade non-
African vessels continue to report harvests of over half the marine catch in
the region, especially fran the rich Northern zone. Their home countries--the
USSR and Spain in particular-take advantage of the still poorly developed
local African fishing industry. Non-African vessels operate under a variety
of arrangements e.g., country-to-country, multilateral, and private investment
agreements. African states receive licensing fees, grants in aid, research
and training, capital investments, or concessions in joint ventures in return
for fishing rights. Joint ventures are attractive to many of the coastal
states, because they supposedly pramote the transfer of technology and provide
for eventual local control of fishing. But in practice they often result in
the stagnation of the local industry; they can deprive locals of needed
foreign exchange and fish protein. Fbr example, the Soviets reportedly charge
Estrela do Mar, their joint venture with Guinea Bissau, more in foreign
exchange than the Bissauans earn from it.
Most foreign assistance to West Africa's fishery sector is in the torn of
bilateral aid with Japan, Sweden, France, Norway, and Canada the major
donors. The EEC, OPEC and other multilateral organizations are also major
sources of aid. The impact of the assistance on increasing the amount of fish
available for sale locally, however, has been limited. A recent study noted
that assistance has been heavily weighted toward infrastructure and capital
equipment for the industrial sector rather than toward the development of the
traditional sector which provides most of the fish for the local market.
Soviets and Fast &iropeans
Fishing agreements provide the Soviets access to local ports and allow
them to position their vessels near international shipping lanes. The
agreements also provide the Soviets, who rely heavily on the fishing industry
for protein, with out 10 percent of their national catch. Romania and East
Germany are even more dependent on these waters for fish, with 60 percent and
40 percent respectively of their national catch caning from these waters.
In 1983 about a third of the regional catch by volume was landed by
Soviet vessels. The Soviets are also a major supplier of fish products to
West African coastal countries. The Soviets fish principally off the
northwestern coast fran I' stern Sahara to Liberia. Although they are
suspected of poaching and of grossly underreporting catches, their vessels are
only occasionally arrested for a fishing violation and operate largely
unpoliced throughout the region.
The Soviets maintain fishing agreements with several countries in the
rich Northern zone. Establishment of fishery treaties began in the 1970s
following the creation of 200-mile Exclusive Econanic Zones. The treaties
'Catch reports submitted by the Soviets and Eastern Bloc countries are
cannonly believed to be less than half of the catch actually taken; a recent
study estimates that actual Soviet catch may be three times that reported.
Other foreign fleets are also thought to under report.
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give Soviet vessels access to the region's fishing grounds and often include
provisions for training, the survey of resources, the development of local
infrastructure, and the sale of fish to local markets. In return the Soviets
often receive hard currency, a large percent of the catch, and use of local
ports.
Some Soviet fishing agreements, such as those with Equatorial Guinea and
Senegal, have been terminated, but others, such as those with Guinea, Guinea-
Bissau, Sierra Leone, and Mauritania have been renegotiated despite
unhappiness with Soviet performance. Dissatisfaction has resulted Fran the
failure of the Soviets to provide training, processing plants and other
pranised shore facilities. Fbr example, in Mauritania the Soviets refused to
build the ship repair facility agreed upon in preliminary accords, and
relations between the two country's were further strained in 1984 when several
Soviet vessels were detained for illegal fishing activities; yet Soviet
involvement in Mauritanian waters has continued because Mauritania desperately
needs fishing revenues and jobs for its populace.
Soviet joint ventures with private Spanish (Sovhispan) and French
(Fransov) interests are active in harvesting, marketing, and processing fish
in the region. For both the Soviet and the West African traditional
fishermen, coastal pelagic fish are the primary catch. The Soviets also
reportedly manufacture fish meal with much of their catch.
The Eastern European catch off host Africa has decreased over the past
few years, but Romanians and East Germans continue to harvest 60 percent and
40 percent respectively of their total marine catch in the region. Their
activities are concentrated in Mauritanian waters. According to United
Nations Food and Agriculture Organization (FAO) reports, the Poles are no
longer fishing in the area.
Spain and Western Europe
The proximity of Est Africa's productive waters to Europe draws many
fishermen into the region. For Spain, waters off Morocco and Western Sahara
are increasingly attractive. The importance that Spain attaches to these
areas is reflected in the favorable terms Morocco extracted in its 1983
agreement with Spain. The value of the catch by Spanish vessels in the region
exceeds that of all other nations. Fran bases in the Canary Islands and
southern Spain, Spanish vessels operate primarily off the coast of Morocco,
Mauritania, and Senegal. They also fish in the Gulf of Guinea and in central
African waters. Spanish vessels have been cited for fishing violations and
like the Soviets are suspected of overfishing and underreporting their
catches. Cpe rating within the framework of goverment-to-government and
cc any agreements, they harvest tuna, crustacea, cephalopods, demersals, and
small pelagics-marketing the latter throughout West Africa.
French, Portuguese, and Italian vessels also operate in the region.
2The Soviets no longer have a fishing agreement with Senegal; but they use
Dakar Marina for servicing and repair of vessels and Dakar International
Airport for transferring crews.
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French vessels--generally owned by private companies working within the
framework of EEC agreements-,operate primarily out of Abidjan and Dakar
harvesting relatively high value tuna, demersals and lobsters. The Portuguese
have joint venture agreements with Mauritania and Guinea Bissau. Italian
catches in the region have fluctuated, but have generally been less than most
other non African actors. Italian vessels are normally based in Senegal and
TDgo.
East Asian
The South Koreans and the Japanese have been the primary East Asians
involved in regional fisheries, but the Chinese, using Las Palmas as a base,
are also beginning to fish in the region. South Korean fishing vessels
operate out of bases in the Canaries and harvest cephalopods, demersals, and
tuna. The R)K has provided training assistance to countries in the region.
Japan has been a major source of bilateral aid for West African marine
fisheries; recent assistance includes a total of almost $3,000,000 in grants
in aid to Togo and Ghana, and the gift of a research vessel and loan of a
training tease to Nigeria. Japanese vessels have been relatively inactive for
the past few years, but in late 1985 Japan signed a one year agreement with
Morocco allowing them to harvest tuna in Moroccan waters. The PRC reportedly
signed a fishing agreement with Guinea Bissau in 1984. Chinese vessels are
also reportedly fishing in Senegalese and Sierra Leonean waters.
P'ranaaic and. Nutritional Significance for West Africa
Despite the underdevelopment of their fishing industries, marine fish and
fish products play a significant role in the trade balances of several West
African states. In 1983, the latest year for which there are complete
statistics, $1.4 billion worth of fish were caught in the waters off West
Africa. Fish are particularly important to the eccnanies of the northern
coastal states such as Senegal, Cape Verde, and Guinea-Bissau where they are
the principal source of foreign exchange; in Mauritania fish are projected to
exceed iron ore as the primary foreign exchange earner in 1986, and in Morocco
they comprise a major item of trade and source of employment--generating $190
million in revenues in 1983. Elsewhere, in Guinea and Sierra Leone, the
potential for generation of foreign exchange earnings from fish exports is
also believed to be significant. The principal exporters of marine fish
products are Morocco, Spain's Canary Islands, Senegal, Ivory Coast, and Ghana.
Foreign exchange earnings based on fisheries are obtained through
licensing fees and other remunerations from foreign fleets as well as fran
export of fish and fish products. Lbwever the full potential foreign exchange
benefits from fishing arrangements are seldan realized. Coastal states
frequently have only limited capability to properly establish and enforce
fishing agreements. Some may also lack the political will to do so.
Furthemore, fee collection is frequently based on reporting by those who are
fishing the waters; fishing agreements and protocols also often contain
conditions which favor the foreign vessels.
According to a Fishery Committee for the East Central Atlantic (CECAF)
report, intra-regicnal trade in fish accounts for only 15 percent of the
region's import requirements. France, other West European countries and the
USSR are major suppliers. The drain on limited foreign exchange is sizable,
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especially for large importers like Nigeria or economically strapped
countries. Insufficient local supplies occur primarily in the south with its
less prolific resource base, but shortages also occur in the north where local
fleets cannot meet domestic needs and foreign fleets licensed to fish in
territorial waters land insufficient quantities of low cost fish for sale to
locals. The major consuming countries are Nigeria, Ghana, Senegal, the Ivory
Coast, and Togo. The market for fish is also strong in the Congo, Cameroon,
and Gabon.
Fish have been a major source of protein in the region, and rapid
increases in population and recurrent droughts in traditional grazing areas
have added to their importance. FAO estimates about one-half the animal
protein consumed in most coastal states is in the form of fish and fish
products. The concentration of the region's burgeoning population along the
coast gives added significance to this resource. According to a recent study
by CECAF, the average regional production of fish per capita in 1980 was only
40 percent of average regional consumption. The. region accounts for about 20
percent of the world trade in canned mac ke ral and sardine (pelag is s) .
African coastal states could decrease imports of fish, conserve toreign
exchange, and create new employment opportunities if policies limiting foreign
fishing and encouraging local traditional or industrial fishermen were
instituted. According to fishery experts an increase in the exploitation of
coastal pelagics by locals could result in a significant increase in protein
food supplies for the region, if processing facilities and trade and marketing
policies are also made available.
The fishing industry in Wbst Africa is estimated to employ over 600,000
traditional and 15,000 industrial fisherman. Additional personnel are
employed in marketing, processing, and distribution. In expansion of the
African industrial fleets would not open up a large number of jobs in the
fishing sector, however, a reduction in traditional fishing operations would
affect not only fishermen but also those who depend on processing,
distribution, and marketing for their livelihood. Morocco, with the most
developed fishery sector in the region has 70,000 employed in the industry.
Status of Management and Development Efforts
Poor management and heavy exploitation threaten the future of the
region's marine fisheries. Coastal countries are unable to effectively patrol
their offshore waters, enforce existing laws, or maintain the technical and
administrative structures needed to support appropriate policies. Not only
are stocks of some of the principal commercial species over-exploited, but
post-harvest losses are generally high, and the handling, processing, and
marketing of traditional fishery products remain major constraints to
expansion of the industry.
The growth of national management capabilities has been hampered by high
costs, manpower deficiencies, and inadequate develpment of institutional
structures and enforcement capabilites. Moreover, reports of corruption in
fishery ministries are not uncommon.
Naval and coastal guard units are generally small and poorly funded; they
often lack equipment, trained personnel, spare parts, and air surveillance
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5. The damaged Siaka Stevens. a Sierra Leoneon
patrol vessel, Freetown
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Country
Length
Co stline
Iqi
Extent
Continental
Shglf
KM
Eliforcement
thit
Morocco
2,300
75,000
Navy
Mauritania
754
32,500
Navy
Senegal
500
30,000
Navy
80
5,200
Harbor Patrol
Cape Verde
1,000
10,000
Navy
3,500
Guinea-
Bissau
350
52,500
Navy
320
39,500
Navy
Sierra
Leone
29,900
Navy
Liberia
17,400
Coast Guard
Ivory Coast
11,600
Navy
Ghana
21,700
Navy
Togo
1,700
Navy
Benin
2,600
Navy
Nigeria
32,300
Navy
Cameroon
25,000
Navy
Eq. Guinea
50,763
Navy
Gabon
39,000
Navy
Congo
16,000
Navy
1,029
Navy
Sao Ttxne/
43,903
Navy
Principe
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capabilites. Lengthy coastlines and extensive continental shelf areas
exacerbate their problems. The small Mauritanian navy for instance, is tasked
with policing a 754 kilometer coastline from a base in the northern part of
the country; operations of its six patrol boats and two aircraft are limited
by fuel and spare part shortages.
Policing efforts are often directed at limiting illegal fishing by
foreign vessels rather than at full enforcement. Even these attempts are
often frustrated. high seas inspections of vessels are infrequentspecially
for those fishing under joint venture or bilateral agreements. Coastal states
from Sierra Leone to Morocco with rich fishery resources are especially
vulnerable to overfishing abuses by foreign fleets. But even states to the
south with less productive waters often suffer abuses.
The absence of a strong legal framework also gives rise to management
problems. The establishment of legislation to delimit fishing zones and
territoral waters is still incomplete as is that regulating catch rates,
weight and size limits, and type of gear. Conflicting claims over
jurisdiction of offshore waters such as those off Western Sahara and those in
the Guinea-Bissau/Senegal boundary zone fuel disputes and inhibit activities.
Because of the difficulty of mobilizing fishery expertise and financial
resources at the national level, most basic fishery management factions have
been carried out under the direction of CECAF, a Flood and Agriculture
Organization/united Nations Development Program (FAO/UNDP) funded
organization. CECAF facilitates canmunciation between member states and
supplies technical expertise. The stock assessments, catch statistics
collecting and training activities carried out under its direction are
essential to the formation of good management policies.
The involvement of ECCYS (E)conomic Community of host African States) in
development of the fishery sector has been minimal, despite the concentration
of prime fishing grounds and large markets in its region. The activities of
the franccphone West African Economic Carminity (CEAO) in the sector have also
been limited.
Prospects for Development
Recent technical studies indicate that future growth of the local fishing
industry and continued viability of the marine fishery resource will depend on
the ability of African states to reduce pressures on marine stocks-especially
on coastal pelagics and cephalopods. Improvement in management and
enforcement capabilities would help reduce these pressures. Argional
cooperation will also be necessary to ensure the continuation of intra-
regional dialogue and the availability of the stock assessments, statistics,
and basic training activites critical to implementation of realistic
management policies. If the ability to manage and police this resource can be
improved, the expansion of the local fishing industry can proceed without
threatening stocks. Tb attract private investment for the expansion,
governments must establish favorable policies.
Efforts to develop the marine fisheries of West Africa face enormous
obstacles, but prospects for gain are perhaps more favorable now than ever
before. There is a growing awareness that past arrangements have done little
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to improve the local capabilities and that foreigners, especially the Soviets,
continue to reap the main benefits of the rich offshore waters. This
awareness has pronpted interest in strengthening safeguards for the fishery
resource. Serious efforts to develop management capabilities and to encourage
private investment would help reduce Soviet and other foreign presence in the
sector.
Despite the improved climate, however, it is unlikely that development
will be either rapid or sustained. Making changes often requires having the
political will to redirect limited human and financial resources. This may be
difficult, especially for countries which rely on existing agreements for
their supply of fish for urban areas or for foreign exchange earnings, or
where important nationals benefit fran current arrangements. In other
instances, the importance of bilateral agreements with countries whose vessels
fish their waters may override concerns over the loss of fishery resources.
The record of state run industry in West Africa has not been good. Private
development of the industrial fleet would probably be most effective, but to
date insufficient private foreign investment has been attracted to the
industry. Assistance to this sector is likely to be required in a wide
variety of ways and over a long period of time.
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-86
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