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Evaluating domestic tuna fisheries projects

Project ID

ASEM/2004/011

Commissioned Organisation

University of Queensland, School of Economics, Australia

Project Leader

Professor Harry Campbell

Email

h.campbell@economics.uq.edu.au

Phone: 

07 3365 6570

Fax: 

07 3365 7299

Collaborating Institutions

National Fisheries Authority, Papua New Guinea
Forum Fisheries Agency, Solomon Islands

Project Budget

$331,435.00

Start Date

01/04/2005

Finish Date

31/03/2008

Extension Start Date

01/04/2008

Extension Finish Date

31/12/2008

ACIAR Research Program Manager

Dr Caroline Lemerle

Overview Objectives

The objective of the project was to develop a benefit-cost model that could be applied to proposals for domestic development of the tuna industry in order to calculate the full range of benefits and costs of any proposed development by a foreign firm. The methodology of a spreadsheet based benefit-cost model had already been developed, and the aim of the project was to gather the data required to apply this model to the analysis of an established cannery in Madang, PNG, as a case study. The case study would then serve as a template for analysis of proposed processing projects in the region.

Project Background and Objectives

While Papua New Guinea has substantial stocks of tuna within its Exclusive Economic Zone, the annual sustainable catch from these resources has probably already been achieved. Further development of the tuna fishery will take the form of a change in the balance between the longline and purse seine fisheries, or a change in the allocation of the purse seine catch. PNG has adopted a policy of domestication of its tuna fishery, which involves encouraging domestic longline vessels and expanding the proportion of the purse seine catch taken by locally based vessels supplying domestic canneries. As locally based purse seiners displace the purse seine fleets of distant-water fishing nations, the level of access fees paid by the latter will decline. Lower access fees are a real cost to PNG and it is important to ensure that the domestic operations which replace those fleets generate at least corresponding benefits for the host nation.
Many foreign companies have expressed interest in setting up tuna processing operations in PNG. At the time the Project was conceived, two plants were in operation with several others proposed. Staff at the National Fisheries Authority needed help in developing and applying a method of analysing the economic benefits and costs to PNG of competing proposals. Other countries in the Pacific Islands region were facing similar issues and staff at the Forum Fisheries Agency indicated that they would also like to be involved in the project.

Progress Reports (Year 1, 2, 3 etc)

Year 1

A paper on the PNG labour force and employment conditions in Madang Province was prepared by the consultant, Dr Gumoi of UPNG, as background to the proposed labour force survey at RD Canners, Madang. A meeting involving the PNG and Australian Project leaders, National Fisheries Authority (NFA) staff and Dr Gumoi was held at the National Fisheries Authority, Port Moresby on July 19 to discuss the project in general and the design of the labour force survey in particular. The Australian project leader and project staff met with RD officials in Madang on July 20. A further meeting to discuss progress was held at NFA on July 22. NFA staff led by Mr Ronald Kuk made a further trip to Madang to discuss the labour force survey with RD staff. The labour force survey was carried out between November 14 and December 7. A total of 207 employees (approximately 10% of the labour force) was interviewed by three interviewers, supervised by Dr Gumoi and Mr Jerome Tioti of NFA. The survey obtained information on the family circumstances, skills, employment opportunities and working conditions of male and female skilled and unskilled workers. The results of the survey were entered in a spreadsheet file for analysis. The Australian project leader was provided with additional details on the operations of RD Canners and preparation of a draft benefit-cost model was commenced.

Year 2

The results of the RD Canners labour force survey were analysed and two papers presenting the analysis were completed (see Section 4.4). A significant result of the analysis was the estimate of the shadow-price of labour which is a key variable in the benefit-cost model of the cannery. A draft version of the benefit-cost model was completed and the methodology and results were discussed in a series of papers (see Section 4.4). Three conference and seminar papers were prepared and presented (papers Section 4.4). The Australian project leader met with the NFA and FFA project personnel in Port Moresby October 24-26 and conducted three workshops on the benefit-cost model (see Section 4.5). These workshops introduced the developing country partners to the methodology, format and results of the model and provided the project leader with valuable suggestions for changes to reflect the situation and needs of the developing countries. In addition to the three project leaders (Ronald Kuk, Len Rodwell and Harry Campbell), the workshops were attended by 7 staff from NFA, one each from FFA, the Department of Trade and Industry, the Investment Promotion Authority, the Rural Coastal Fisheries Development Program, the National Research Institute and the University of PNG. Following the workshops the model was revised and made available on the project website.

Year 3

The results of the RD Canners labour force survey were analysed and two papers presenting the analysis were completed (see Section 4.4). A significant result of the analysis was the estimate of the shadow-price of labour which is a key variable in the benefit-cost model of the cannery. A draft version of the benefit-cost model was completed and the methodology and results were discussed in a series of papers (see Section 4.4). Three conference and seminar papers were prepared and presented (papers Section 4.4). A member of the FFA staff, Linda Kaua, received additional training in the methodology and application of the cannery benefit-cost model developed in 2006 at a special training session conducted by the Australian Project Leader, September 17-18, 2007, at FFA headquarters in Honiara. Linda Kaua is now applying the model to evaluate a tuna cannery project in the Solomon Islands and she made a trip to Noro to collect data for this purpose.

Project Outcomes

Estimates of a range of shadow-prices required to measure the opportunity cost to PNG of the resources, principally fish stocks and labour, it contributes to a domestic tuna processing operation were generated. A large sample survey of the domestic labour force in the Madang cannery was undertaken with the cooperation of the company and a great deal of data about employees' personal and employment characteristics was collected and analysed to determine the shadow-price of labour. The data were also used to determine the effect of level of education on labour productivity in the cannery.
Shadow-prices of tuna catches, foreign exchange, public funds, environmental costs and locally provided services were also considered. The results were incorporated in a spreadsheet benefit-cost analysis using the method earlier developed by Campbell and Brown, which emphasises the net benefits to the host country. A member of the FFA staff undertook a similar analysis of a proposed tuna cannery in the Solomon Islands.
The benefit-cost model details and measures the range of benefits and costs which the host country could expect to flow from a domestic tuna cannery. Since the model also measures the net benefit to the foreign firm under a range of possible financial arrangements, it can be used as a tool in negotiating any tax or similar concessions requested by the firm. Since partner-country staff members were fully involved in the survey work at the cannery and the subsequent development of the model they are able to apply their knowledge to new proposals as they come forward. Working on the project has also improved the general level of understanding about the range and size of the benefits and costs of domestication to the countries of the region. The model and its results are available to fishery analysts throughout the region at: www.uq.edu.au/economics/tuna.

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