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Economic performance and management of the Gulf of Papua prawn fishery
Project ID
ASEM/2002/050
Project Country
Commissioned Organisation
Australian National University, National Centre for Development Studies, Australia
Project Leader
Dr Thomas Kompas
tom.kompas@anu.edu.au
Phone:
6125 6566
Fax:
6125 5570
Project Budget
$269,487.00
Start Date
01/07/2003
Finish Date
30/06/2006
Extension Start Date
01/07/2006
Extension Finish Date
30/06/2007
ACIAR Research Program Manager
Dr Caroline Lemerle
Related publications
Overview Objectives
The project objectives were to analyse the economics of the GPPF fishery and the industry, to:
document their economic status
assess economic performance
develop and evaluate management and policy options
assess the impact of a small boat (inshore) fishery on the Gulf of Papua prawn fishery.
Project Background and Objectives
The management of limited access fisheries is a difficult challenge. In most cases the harvesting capacity of the fishing fleet exceeds the biological capacity of the resource to regenerate, threatening the viability of the natural resource itself. As a result some type of control aimed at reducing catch or harvesting capacity is necessary. Ideally, management of the fishery should both enhance economic performance and guarantee the biological and economic sustainability of fish stocks for generations to come. The key target for the economic management of the fishery is Maximum Economic Yield (MEY), or a catch or effort level that maximises the discounted value of total revenue minus the total costs of fishing. Economic efficiency also requires that vessel and fleet capacity minimises the cost of harvest at this MEY catch rate.
The National Fisheries Authority (NFA) has the task of managing all fisheries in Papua New Guinea, including the Gulf of Papua Prawn Fishery (GPPF). The GPPF currently catches between 400 and 650 tonnes of banana prawns and 160 tonnes of black tiger prawns each year, worth roughly K15 million. There are 15 vessels in the fishery, with average landings that range between 25 and 70 tonnes. Formal assessment of the economic and biological status of the fishery has been hampered by poor quality logbook and financial data and a lack of an adequate time series of catches and catch rates needed to undertake a stock assessment or construct a bioeconomic model. Recent rises in fuel prices and catch rates have threatened the economic viability of the fishery.
Progress Reports (Year 1, 2, 3 etc)
Year 1:
The project is proceeding well ahead of schedule on the construction of a bioeconomic model. Survey data collection is proceeding with industry's full cooperation. Cooperation between the biology and economis project has been highly successful with researchers in both groups (and from both Australia and PNG) making significant contributions to the project.
Three major project achievements occurred during this period of time in the project. First, a joint meeting (combining the economics and biology projects) to coordinate research and data collection was held in PNG in December 2003. At this meeting project objectives were discussed, preliminary bioeconomic models were presented, the extent and availability of historical data was clarified, and working groups (including economics, vessel characteristics and catch and effort relationships---all essential to the economics project) were established to determine future data requirements and survey design. At this time a meeting with industry representatives also took place to inform industry of the project, to obtain final cooperation for data collection and to solicit suggestions from industry for project outcomes.
Second, based on work in the first three months of the project and work during the December meetings in PNG, a preliminary assessment of the logbook data already available was completed. It was determined that the data in some cases was not properly entered and that the series would have to be corrected and brought up to date. That work has now been completed. Future data requirements were determined and a survey data set questionnaire was also completed with data collection commencing in January 2004, and continuing to be collected to this date. The questionaire for the economics data has been completed and data collection began in early 2004. Industry has agreed to cooperate fully with the data collection process.
Third, within the last six months in particular, the Principal Investigator in Australia has completed work on the bioeconomic model used to determine the economic performance of the fishery and to assess management options. Initial runs will require both economic and biological data.
Year 2:
The economics component of this project (joint with a biology and stock assessment component) is proceeding on schedule. Based on the generic form of the bioeconomic model constructed last year in the project, the mathematical form and computer coding of the bioeconomic model as applied to the specific case of the Gulf of Papua Prawn Fishery (GPPF) is now complete, with both the Principal Investigator in Australia and the Principal Investigator in PNG now thoroughly familiar with its construction and implementation. Most of the economic data required to calibrate the bioeconomic model for the case of the GPPF has been assembled and verified. Industry cooperation with data access has been very beneficial. Final bioeconomic model results are now pending the final inclusion of the stock assessment model.
Four major project achievements occurred during this period of time in the project. First, a joint meeting (combining the economics and biology projects) to coordinate research and data collection was held in PNG in October 2004, following a similar meeting conducted in December 2003. At this meeting project objectives were discussed, including ongoing reports on the extent and availability of data collection, with working groups reporting on stock assessment and vessel characteristics research. A meeting with industry also took place. Second, the Principal Investigator from PNG, and his research associate, meet with the Principal Investigator, and his research assistant, in Canberra, Australia, in December 2004. At this meeting the final version of the bioeconomic model---as applied to the specific case of the GPPF---was developed, explained, finalized and coded. Third, all relevant economic data was collected from industry and through port visits throughout the year, allowing sufficient calibration of the bioeconomic model in terms of its major economic components. Finally, at the December meeting in Canberra, considerable progress was made on the development of management objectives and policy options for the GPPF.
Year 3:
The economics component of this project (joint with a biology and stock assessment component) is now behind schedule, due to the repeated delay in establishing a stock-recruitment relationship by the biology team. This stock-recruitment relationship is a crucial part of the bioeconomic model. A preliminary stock-recruitment relationship was finally established at the annual workshop in Port Moresby, June 5th to 8th, 2006. Based on this preliminary relationship, the economics team has now developed estimates of 'maximum economic yield' for the fishery, establishing optimal effort and catch levels, based on the generic form of the bioeconomic model constructed last year in the project. The mathematical form and computer coding of the bioeconomic model as applied to the specific case of the Gulf of Pupua Prawn Fishery (GPPF), based on this preliminary stock-recruitment relationship, has now been completed and thoroughly tested, with both the Principal Investigator in Australia and the Principal Investigator in PNG completely familiar with its construction and implementation. Final model results will be based on the final stock-recruitment model which should be available at the next planned workshop in October 2006.
Most of the economic data required to calibrate the bioeconomic model for the case of the GPPF has been assembled and verified. This has now been coded in Access and Excel format, and double checked for accuracy. With one or two exceptions, industry cooperation with data access has been very beneficial. Nevertheless, given the delay in the project, data now has to be updated to account for recent and dramatic increases in the price of fuel. A supplementary data set is now being constructed by the team in PNG for use in the estimate of final model results.
At the June 2006 workshop in PNG, considerable progress was also made by the economics team on the development of management objectives and policy options for the GPPF. Model results should now be completed in October 2006 and policy options based on these results will be articulated in a report and a planned workshop in PNG in November 2006.
Project Outcomes
The bioeconomic model revealed that the recent catches of about 550 tonnes were biologically but not economically sustainable (especially with current fleet size), and that the fishery should target a catch of 480 tonnes of banana prawns per year to maximise profits. Given these catch rates, the project also found that the number of fishing licenses should be reduced to around 10, improving the returns to each operator and matching fleet capacity to the amount of annual catch. Economic data collection and analysis revealed that a substantial portion of variable costs accrued to repairs and maintenance. Much of the GPPF fleet comprises vessels in excess of 20 years in age, purchased from operators in the Northern Prawn Fishery (NPF) of Australia. Current vessel capital and catch rates were not sufficient to allow for adequate upgrade and repairs of vessels. The MEY target of 480 tonnes and a fleet of 10 boats will generate sufficient revenues at current prices to address this problem, and allow for cost recovery management of the fishery.
The measure of MEY changes periodically, affected by changes in the price of fish and the cost of fishing. The project equipped and trained economists at NFA to conduct suitable bioeconomic analyses to determine dynamic MEY levels in the future, so that the target value of catch can be adjusted with proper economic management of the fishery. Current management directives indicate that MEY will be recalculated annually. This process is facilitated by the ongoing collection of economic data as a planned part of licence requirements to fish in the GPPF.
One of the consequences of the extensive data collection during the project has been to improve the level of interaction and trust between the fishing companies and the NFA. The combined projects recommend that these improved relations be sustained by appointing an industry liaison officer to facilitate collection of vessel logbooks and company landings, along with financial and economic data. The liaison officer will also provide data summaries to each company that will enable them to better track the status of the prawn resource.
As part of the overall management of the fishery, a key recommendation of this project is to allow an extension of fishing licenses from the current one-year renewable to a five-year renewable system. This would provide operators with more security (and a potential for accessing loans based on this right), and further secure effective property rights to fish. It was also recommended that these licenses be tradeable so that the right to fish can be effectively transferred from high to low marginal cost fishers. This transfer enhances efficiency in the fishery and lowers the overall cost of fishing.
A final component of the project was to assess the potential for an independent fishery inshore of the 3 nautical mile (nm) closure by small vessels operated by the local community. VMS and logbook data showed that about a third of the total prawn catch in the GPPF was coming from within the 3 nm closure zone, despite trawling in this zone being prohibited. Illegal accessing of the inshore waters has been a source of great tension between the fishing industry and traditional resource owners in the Gulf of Papua.
Although the biology project (FIS/2002/056) found that this illegal fishing into the 3 nm zone did not appear to substantially impact the sustainability of the prawn resource, from an economic perspective, catch rates within the 3 nm zone were over 30% higher than on the adjacent fishing grounds. Thus the economic viability of the fishery is largely dependent on accessibility by the operators in the industrial fishery to the inshore waters with higher prawn densities. With this in mind, the project recommended that fishing operators be allowed to access the zone up to 2 nm from the coast during the second half of the year. The project also recommended that individual operators enter into an access agreement with the traditional resource owners before they start to fish within the 3 nm limit. This resource sharing will enable some of the economic benefits gained by the industrial fishery to return to the community and thus reduce the tension between both parties.
Location
There are no project locations defined for this project.
