UGANDA
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Transcript of UGANDA
UGANDA UGANDA Integrated Assessment of the Fisheries Policy Integrated Assessment of the Fisheries Policy
for Adequacy of integration of Economic, for Adequacy of integration of Economic, Environmental and Social concernsEnvironmental and Social concerns
Integrated Assessment and Planning for Integrated Assessment and Planning for Sustainable DevelopmentSustainable Development Second Review Meeting
Geneva, September 21-22, 2005
Alice Ruhweza - National Environment Management Authority, Uganda
Background (1)
Project launched Jan04, several studies & analyses, launch wkshop sep04, brochure, website, consultative wkshops
Project Management – NEMA & Economic Policy Research Center
National Technical Steering Committee - meets once a month. Composed of Government Ministries ( Health, Water, Land & Env., Local Government, Trade, Tourism and Industry, Agriculture (Plan for Modernisation of Agric), Finance, National Planning Authority/ NGOs – Advocates Coalition for Develpt.
UNEP, Consultants and Other Stakeholders
Background (2)
The original key objective of the project was to further develop local capacity to integrate ESE considerations in the design and assessment of national planning processes. This remains our overall objective
Started with a view of influencing the PEAP revision process but time did not allow it and PEAP was too big
Considered Plan for Modernisation of Agriculture but realised Agric. Exports e.g Coffee was no longer a strong export
Background (3)
- Team chose to focus on the Trade Policy - Trade is recognized as an engine of economic growth, and a new policy is being drafted. Team envisaged an opportunity for ex ante assessment.
However, after preliminary analysis and a consultative workshop in August, it became clear that the trade policy was not ready for analysis. However the team discussed with the Trade Ministry the ESE considerations for the policy
After further consultations the country team chose to assess the fisheries policy
Background (4)
Why Fisheries?The Fisheries policy is relatively new having
been adopted in 2004 – offers great opportunity for a concurrent assessment
Fish is Uganda’s second highest foreign exchange earner
The Fish sector has very strong ESE implications
Background (5)
The Fisheries Policy (2004) - Process began in 1999 finalized 2004. Wide stakeholder consultations
Key Objectives of the Fisheries Policy - Sustainable mgmt & devpt of fisheries/ Decentralisation $ community involvement/ Environmental issues/ Fish marketing & trade/post harvest qlty/ Aquaculture/ Instns and funding mechanisms/ Human resource development – etc
- Related policies and programmes - National Environment Policy/Water Policy/Wetlands Policy/Wildlife Policy... MEAs (CITES, CBD, RAMSAR, TECCONILE, FAO Conduct for responsible fisheries..etc)
Methods of Assessment
Root cause analysis – identify ESE issues Pressure state response model –
environment linkages Scenario Building – spatial and temporal
linkagesThe scenario analysis analyses whether the
current policy is really an improvement over what existed before , if not, what could be done to make it even better.
POLICY SCENARIOS
a) Zero state –– without policyaccess to the resource goes to highest
bidder(poor people marginalised); increased pollution load (effluent from breweries, abbatoirs..etc); % discards is high, invasive alien species (water hyacinth), Fish stocks declining, prices stagnant, fish ban (EU-1999); poor fishing gear (bottom trawling); reduction in biodiversity (only 3 main types left)
Scenarios - continued
a) Policy state– community management of fisheries in place, beach management units/ lake management organizations; MSY is set, monitoring and surveillance system set up, demand for fish is growing (demand gap – 50,000 metric tonnes); price of fish is rising decentralisation policy; aquaculture is promoted; resource rents introduced, ban on illegal gear; (more stringent standards (EU)
Scenarios (continued)
c) Ideal state- Improved policy integrating ESE- Demand of fish anticipated from the outset and measures are put in place; aquaculture or imports from other countries fulfill demand; no excess capture of fish beyond MSY; better technology-wate treatment plants; use of economic instruments
Key assumptionsa) trade in fish is good and can be increased sustainablyb) current policy is better than the situation that prevailed before it
Assessment Framework
Economic indicators Scenario 1 Scenario 2 Scenario 3
total income of fishers declining Stagnant Stable
monetary GDP contribution
declining Stable Increasing
value of fish exports in decline improve Steady increase
estimated gross revenue of fish factories
decline in long-term
Stable stable
estimates of revenue from different fisheries
declining stagnant steady increase
catch per unit effort increasing stable stable
Economic indicators
Assessment framework (cont’d)
Social indicators Scenario 1 Scenario 2 Scenario 3
percentage of fishing community with access to fish resource;
Low High & controlled
High
number days reported sick;
high low Low
number of women in fish management; and
Very few (largely none)
At least 30%
Above 30%
number of children in school
Less than national average
National Average
All children
Social indicators
Assessment framework for Fisheries (cont’d)
Environment indicators Scenario 1 Scenario 2 Scenario 3
percentage of by-catch in fish harvested
High approx. 25%
Lower than 25%
less than 10%
volume of fish catches over a number of years
Decreasing stable Stable
Types of different fish species
3 prominent types
More than 3 up to 10
At least 20
Water quality(eutrophication, hyacinth, BOD all high )
Low and declining
Slight improvement
high
Population of birds and animal species
declining Stable High
Area of forest cut down over years
Large and increasing
Fixed Private plantations
Environment indicators
Initial effects on the other protein sources such as livestock meat products, and crops (beans, peas)
Zero policy state Policy state Ideal/enhanced policy state
Effect on the price of using related natural resource sector
Effect on incentive of using related natural resource sector
In Uganda higher per capita fish consumption was recorded for the poor and lake region communities (Keizire, 2003);Beef, poultry, and other meats more expensive than fish; Consumer preference for beef higher (occasional markets e.g. ceremonies); There is unlikely to be major shifts on the price of meat or fish; andFuture fish catches will fall leading to higher demand and prices, which may overtake meat prices, domestic consumers will switch to meat or to crop based protein sources, which are generally cheaper;Or cheaper fish imports where they exist
The Fisheries policy seeks per capita fish consumption of 10kg;A demand gap of 50,000 (less 2000 from aquaculture) metric tonnes by 2015; Demand leads to a rise in the fish price possibly over taking the price of meat; and Domestic consumers will switch to meat and the poor to the cheaper crop protein sources; Alternatively, the demand could be filled with imports.
Predict future demand shortfall of 50,000 metric tonnes;Develop a farmed fish industry that grows with both domestic and international demand;Prices will remain stable in the long-run for the fish sector in relation to the livestock and protein crop
How will the changes in price or incentive in turn affect production or use of the natural resource
Zero policy state Policy state Ideal/enhanced policy state
Product Quality will decline, crowded system with little regulationQuantity will decline as catches dwindle
Quality will improve considerable;Quantity will remain constant
Quality and quantity should both increase
Scale There will be reduced economic growth and consumption per capita of fish.
Economic growth will increase gradually; andFish per capita consumption will decline
The fisheries economy will increase steadily; and Per capita fish consumption will be high as well.
Technological
Canoes, nets, and a few boats nets, haphazard investment in aquaculture
Canoes, nets, and a few boats nets, low investment aquaculture
Mostly boats, cage farming and intensive technology in land based aquaculture
How will the changes in price or incentive in turn affect production or use of the natural resource
Structural Low specialisation, a lot of vertical integration with little technical capacity; the processors exist as a disparate group
Institutional units (BMUs) control fishers; middlemen and processors are part of the chain leading to exports and/or domestic markets
Institutional units (BMUs) and commercial fishers, farm fish operators control fisheries; middlemen and processors are part of the chain leading to exports and/or domestic markets
Location Roads, cold storage systems and telephone networks are used only by processors and exporters
Improved road access, presence of cold storage sites and presence of mobile telephone network at major fish landing
Improved road and transport access, cold storage systems, fixed and mobile telephone network at major and minor landing sites
Regulatory Use of District fisheries Officers and local government for monitoring control and surveillance (MCS);use of technology standards for fishing gear and threat to prosecute; andPoor enforcement and bribery
Creation of overall MCS body, Uganda Fisheries Authority to monitor performance of lower level institutions, BMUs and Lake Management OrganisationsUse of fines and charges, in addition to threat to sue
A national body in charge of MCS;Use of standards as foundation for enforcing both codes of conduct and economic instruments for environmentally harmful actions
Economic/trade effects
How will changes in production use affecteconomic/trade performance under each scenario?
Econ/trade indicators
Scenario 1 Scenario 2 Scenario 3
total income of fishers
Decline Stable Increase
catch per unit effort
increase constant Decrease
value of fish exports
decrease Stable increase
Environmental effects
How will the changes in production or use of resource affect the environment under each scenario?.
Environmentindicators
Scenario 1 Scenario 2 Scenario 3
percentage of by-catch in fish harvested
Higher in excess of 25%
Decline to less than 25%
Be less than 10%
volume of fish catches over a number of years
Decline stable Stable
Types of different fish species
3 main species other less than 10%
Up to 10 species
At least 20 species
Social effects (1)
How will changes in production or use of resource affect social well-being and poverty in each scenario?.
Social indicators
Scenario 1 Scenario 2 Scenario 3
percentage of children in school;
Much less than national average
National average All
number days reported sick;
high low Low
number of women in fish management; and
Less than 10% 30% More than 30%, as many opportunities as men
Social effects (2)- Who are the winners and losers ?
Winners winnings Losers lossesZero policy state
The private tender holders;Commercial fishers;Illegal fish exporters;
Un limited access to the fishery;Profits from the tenders;
Poor of the fishing communities;Fish consumers in Uganda;Future fisheries resource users
Loss of access to fishery if unable to pay tender holders;Nutrition loss, less than 10kg per capita consumption;Dwindling fish stocks
Fisheries policy state
Fishing communities; andFish processors and workers
Increased access to fishery; and Employment and a revenue stream
The private tender holders;Commercial fishers;Illegal fish exporters;
Unlimited access to the fishery; Loss of exclusive rights to some fisheries; andLoss of black market
Ideal policystate
Fishing communities;Commercial fishers;Fish processors and workers; Fish consumers; andFuture resource users
Access rights to fishery;Employment and a revenue stream;10kg per capita consumption
Tender holders;Illegal fish exporters
Un limited access to the fishery; andIllegal use of fish resources
Secondary effects (1)
Please describe any further, long-term social & economic/trade implications of the projected environmental changes?
Scenario 1 Scenario 2 Scenario 3
High incident of environmental health problems (malaria, cholera), and communicable diseases especially HIV/AIDS;
High unemployment rate;
High rural urban migration to cities
In ability for poor communities to meet their protein dietary requirement – Nutritional health problems (e.g. high infant mortality, malnutrition)
Activities that lead to sabotage, e.g fish poisoning and illegal nets
Social pressures from groups opposed to large scale commercial cage farming and other
Secondary effects (2) Long-term environmental & economic/trade implications from the projected
changes in social well-being?Scenario 1 Scenario 2 Scenario 3Loss of export revenue as prey fish species for the carnivorous commercial types such as Nile Perch dwindles
Loss revenue from Bird and Mammal species eco-tourism and tourism operations
High soil run off into lake due to deforestation by fishing communities
Pressure on other natural resources from poor communities e.g. increased deforestation
A trade-off between the international export trade and the domestic market
The possibility that the present fish managers may not adopt to sustainable management practices
Commercial aquaculture leading to increased harvest of prey species to boost aquaculture, leading to collapse of capture fishes; Technology revolution that most stakeholders than will leave out many fishers Transformation in wild fish stock by aquaculture species that escape and breed with wild stockCompetition to protect market position, will lead to patenting and several battles over product authenticity and quality
Recommendations (1)For concurrent assessment, how should the policy/plan be re-
formulated or revised?
1. Compliment Command and control practices with market based instruments such as environmental bonds on industries likely to pollute and punitive charges for illegal behaviour;
2. The groups that lose out need re-tooling on how they can integrate in the wider economy with as much ease as possible (micro-finance, and enterprise development) and this can begin within the BMUs;
3. The policy should take on board the special education needs and health requirements for the fishing communities
4. There will be need to study how the market based instruments can be designed to avoid a reduction on processors revenues proposed by policy and charges to regulate by-catch and discards.
5. Voluntary measures such as cleaning up pollution as part of corporate responsibility should be encouraged, although they should not detract from other official instruments, instead they should be rewarded for instance through reductions on official pollution charges
Recommendations (2)
How to improve the process of policy/plan-making? – Public participation: Improvement in stakeholder
identification-linkages need to be understood
– Inter-ministerial coordination: Use of monetary measurements to weigh trade-off or easily understandable indicators (lives lost, jobs lost)
– Inter-desciplinary collaboration: Build an early rapport between the sector stakeholders and the IAP committtee, UNEP may participate in this as well
– Participation of affected communities & marginalised groups: At a local government, village, parish, resource utilisation level encourage institutional development and quotas in the management structure for marginalised groups. The IAP process should also identify with these stakeholders
Enabling conditions What needs to happen in order to implement the recommendations?
1. The results of the IAP need to be disseminated to all stakeholders and the findings agreed upon – NEMA/EPRC/UNEP and TSC
2. Identify national projects already implementing the recommendations and a way of inputing these findings - NEMA/EPRC/UNEP and TSC
3. For the sector of focus discussions should be held with stakeholders, especially at policy impelmentation – how can they benefit from these findings? NEMA/EPRC/UNEP and TSC
4. Identify areas where studies to clarify on the recommendations mentioned need to be carried out - NEMA/EPRC/UNEP and IAP working group/ DFR
5. Passing of the Fisheries Act by parliament will put in place a stronger legal framework and institutions that can implement the recommendations mentioned above
Lessons learned
A. Direct ENR sectors with trade, economic and social implications as well offer immediate fertile grown in piloting IAP;
B. IAP is a great tool and it should be promoted on its own merits and taught to all policy makers
C. Too many tools – maybe only a few tools, which can be augmented as process goes along actually need mention; and
D. IAP could be used to draw out environmental goods and services more prominently.