The
Development Planning Unit
Government of the British Virgin Islands

NATIONAL INTEGRATED DEVELOPMENT STRATEGY

Fisheries Development in the BVI
Emerging Issues

A TECHNICAL REPORT FOR THE SUB – COMMITTEE
ON PRODUCTIVE SECTORS
PREPARED BY
CONSERVATION AND FISHERIES DEPARTMENT
MINISTRY OF NATURAL RESOURCES AND LABOUR
BRITISH VIRGIN ISLANDS
WITH TECHNICAL ASSISTANCE FROM
UNITED NATIONS CENTRE FOR HUMAN SETTLEMENTS
UNITED NATIONS DEVELOPMENT PROGRAMME
MARCH 1997

EXECUTIVE SUMMARY

The British Virgin Islands has an Extensive Exclusive Fisheries Zone of 84,000 sq.km. in which are located several fishing banks with diverse fish resources. This includes shallow water reef fish, deep slope and bank fish, pelagic's, crustaceans and mollusks. Some of the fish species such as sword fish and blue marlin are attractions for sport fishing tourism.

Fishing was the traditional occupation of British Virgin islanders before the recent spate of economic development. The Territory’s fishing zone is located in the path of several migratory fish species and is favored with productive fishing banks such as the Sea Mount and North Drop. These factors presume the development of a lucrative fishing industry.

The Fisheries sector as presently managed is not making adequate contributions to the economy of the Territory. A large percentage of its inherent revenue earning potential is still under-exploited. It is apparent that there is a need for specific policy directives and legislative regulations to guide the future focus of the sector. Issues that should be considered in setting these policies and strategies include;

• Low level of local participation in recreational fisheries and continued loss of revenue from sale of fish caught within BVI waters outside the Territory.
• Meager revenue from licensing of fishing vessels.
• Ineffective marketing system that favors fish exports by individual fishermen despite the high domestic demand.
• Consistent increase in value of seafood imports particularly those in demand by the tourist industry.
• Over reliance of the fishing industry on foreign markets for the supply of equipment and raw materials giving rise to high capital and maintenance costs.
• Inadequate surveillance and enforcement capability with reoccurring incidence of illegal fishing.
• Poor condition of existing facilities at landing sites which are not adequate to meet present demands.
• Few management measures to conserve existing fish stocks from over exploitation.
• Inconsistencies in available data to allow for development of management measures.
• Existing legislation’s are inappropriate to address recent developments in the fisheries sector.

Three types of fisheries operate in the BVI, artisanal, recreational and offshore pelagic. Traditional fishing methods are still predominant, but some initiatives are being made to encourage more longline fishing. Big game sport fishing by foreign-based vessels is a prominent issue in recreational fisheries as it relates to the licensing of vessels and the landing of fish caught.

An evaluation of the economic performance of the fisheries sector shows a steady increase in the quantity of fish landings from 730 – 1460 tonnes between 1981 and 1993. GDP contributions of the sector ranged between 3.3% in 1981 –to 3.1% in 1991.

Since the tourist and fishing seasons coincide there is considerable potential to develop the market for recreational and commercial fishery.

Pelagic species such as Dolphin, Swordfish, Tuna, Wahoo and Kingfish are often in demand. There is a high domestic demand for fish that is partly met by increasing imports of seafood. Most of the high import value is accounted for by the demand for delicacies like Lobsters and Conch by the tourist industry, in response to the declining catch rate of this fishery.

It is obvious that the BVI fishing industry has the potential to expand and make a greater contribution to the GDP. Its performance has been hampered by such constraints as inadequacies in existing policies, legislation’s, lack of capital, fishing practices and coastal development activities. Conflicts also exist in the use of traditional fishing grounds for tourism.

The urge for diversification of the economy could be met by increased government investment in the fisheries sector. New areas with high yield potential could be exploited. These include commercial fishing for Tuna and exploitation of those species as Crevalle jack which is not locally preferred.

Finally it should be emphasized that the sustainability of any development project for the fishing industry would be largely determined by an effective data collecting and management system as well a realistic stock assessment of the fishery resources.

1.0    INTRODUCTION

Fishing is a part of the tradition and culture of the British Virgin Islands. Government policy reserves commercial fisheries as a right for B V Islanders and Belongers. BVI has a total landmass of 155.4-sq. km. (60-sq. ml.) and an Exclusive Economic Zone of 200 mls. Fisheries is the primary natural resource however, its contribution to the GDP is often under estimated and its importance not fully appreciated. The BVI possesses rich and diverse reef and pelagic fish stocks, the integrated development of which can play a leading role in the diversification of the economy and reduction of the import bill for seafood’s.

The role of fisheries goes far beyond the commercial aspects, it is also important for food, nutrition, health and recreation of the territory.

Fisheries play an important role in tourism, which is often overlooked. Hotels, restaurants, the dive industry and the charter boat industry rely on fish either as a local cuisine as well as for recreation or for its attraction. Commercial longline fishery and sport fishery have multi- million dollar earning potential and their proper development should be considered as a strategic priority.

Whilst constraints to development should be investigated, potential threats to fisheries must be addressed. Coastal habitats, mangroves, seagrass beds and coral reefs, which are important to fisheries, must be protected from adverse development and degradation. Putting in place good management plans and effective surveillance and enforcement procedures would minimize resource use conflicts and illegal activity. The institutional capacity of the Conservation and Fisheries Department for fisheries management and enforcement must be strengthened.

This report presents an overview of the emerging issues in the development of the fisheries industry and is a first step towards an integrated development strategy for the fisheries sector.

2.O   DESCRIPTION OF THE FISHING INDUSTRY

2.1 THE FISHING AREA

The British Virgin Islands are located on the same geological shelf as Puerto Rico and the US Virgin Islands, with the exception of St. Croix. The Caribbean Research Institute (1969) gave a concise description of the shelf. The total shelf area is approximately 10,393 km.sq (3,026 square nautical miles) of which about 3,130 km.sq. belong to the BVI. About 90% of the shelf floor is no deeper than 60m. (200 ft). The floor of the shelf is dotted with coral reefs and rocks with a total slope length of 176 km. BVI has an Exclusive Economic Zone of 84,050 km.sq. The pelagic area, beyond the shallow shelf belonging to the BVI is approximately 74,813 km.sq. ( 83 000sq.mls.). Several banks rise above the general shelf floor but the most notable ones associated with fishing are the Barracuda Banks or Sea Mount to the south east of Virgin Gorda, the Barracouta Banks or North Drop to the north of Jost Van Dyke.

2.2 THE FISHERIES

The three main types of fisheries presently operating in the BVI are the Artisanal ( Commercial ) Fisheries , Recreational Fisheries and Offshore Pelagic Fishery .

2.21 Artisanal ( Commercial ) Fisheries :

These employ small boats and traditional fishing methods. Alimoso and Davies (1991) found that there were about 300 artisanal fishermen operating in BVI waters. Fifty percent of these fishermen own fishing gear and boats while the other 50% do not own any gear or craft and act as helpers or employees of the gear owners. Records available at the Conservation and Fisheries Dept. show that there are 150 registered boats, 80 % of which are less than 25ft. in length. The main fishing gears used are fish traps, hook and lines and fishing nets (mainly gill nets and seine nets). Table 2.1 gives a summary of fishing methods used and the common types of fish caught by these methods .

Most artisanal fishing is carried out on the shelf particularly in the areas around Anegada, east and north of Tortola and Jost Van Dyke including the Banks. Other areas are located around Virgin Gorda, Peter Island, Cooper Island and Salt Island. A relatively small amount of hook and line ( vertical longlining ) is conducted in deep water around the edge of the shelf, at the Barracuda Bank to the east of Virgin Gorda and the Barracouta , Kingfish, Turtle Head and Whale Banks to the north of Jost Van Dyke.

2.22 Offshore Pelagic Longline Fishery:

Various assessments of BVI’s pelagic longline fishery have been carried out over the years ( Alimoso, 1992 ; MRAG, 1993 ). These studies have shown that between 1984 and 1990, 22 large foreign-based longliners were issued fishing licenses. Total annual catch from the fishery averaged about 90 tons/year ( 200,000 lbs. ) for the period 1984 – 1990. Since then no licenses have been issued to foreign fishing vessels due to the dissatisfaction with the benefits such licensing has generated.

The Government’s action in placing a moratorium on large scale commercial longline fishing was also prompted by the general opinion – particularly from inshore fishermen, that such activities of large, foreign vessels necessarily interact with and deplete the near-shore and probably in-shore resources, thus depriving nationals of the full benefits available from those fisheries . Two locally based longliners started operating in the BVI in 1985 and 1992. The vessels operate out of Anegada between 15 – 20 miles off- shore.

TABLE 2.1
FISHING METHODS USED IN THE BVI AND THE MOST COMMON TYPE
OF FISH CAUGHT BY THESE METHODS

2.23 Recreational Fisheries:

Recreational fisheries are classified into Big Game Sport Fishery and Pleasure Fishery. In practice the dynamic nature and similarity of operations in the two fisheries makes it difficult to effectively differentiate between them. Past reports by Walters ( 1983 ) and S. Alimoso ( 1993 ) described the two as follows – :

(a) Big Game Sport Fishery: Involving professional angling aimed at big game fish such as blue marlin (Makaira nigricans) and sail fish (Istiophorus albicans). Vessel size range between 25 ft. – 50 ft. in length.

(b) Pleasure Fishery: Involving amateur angling, harvesting such small fishes as tarpon (Tarpon atlanticus) and bonefish (Albula vulpes). Vessel sizes are between 17ft. – 40ft. in length.

The limited documentation on the performance of the recreational fisheries in the BVI is a constraint to the determination of its potential for development. The Conservation and Fisheries department has been licensing recreational fishing vessels from 1987. A review of data on licensed vessels from 1987 – 1995 shows that a total of 760 licenses have been issued, starting from 24 vessels in 1987 to a peak of 127 in 1989 and 117 in 1993. Lowest values in the last nine years were recorded in 1994 and 1995. Issuing of licenses was suspended from the later part of 1995 to December 1996, due to a review of licensing procedures. Recreational fishing license are also given to captains and crew of sailing boats, who mainly fish for small inshore game fish by trolling. Table 2.2 and Fig.2.1 show the distribution of recreational fishing boats licensed by the Conservation and Fisheries Dept. from 1987 – 1995 and their normal home base.

The increased number of vessels fishing in the BVI reflects easy access to BVI fishing grounds. It is important to note that only 28.2% of licensed boats are based in BVI, which is an indication of the level of local participation in the fishery. Further analysis of the data showed that 63.4 % of the vessels are based in the USVI, a trend that has been maintained for the past six years ( fig. 2.2 ). Detailed information on the catch rate and landings of fishes caught by recreational vessels is not available, however the practice is for these foreign-based vessels to land their catch at their home base after a day’s fishing. Since foreign boats make up a large proportion of the recreational fisheries fleet, substantial quantities of high quality fish are taken and landed outside the BVI.

As part of its 1997 work plan the Conservation and Fisheries Dept. is making efforts to develop the locally based sport fishing industry and improve the management and conservation of pelagic stocks targeted by sport fishermen. In liaison with the BVI Anglers Club, BVI Tourist Board and Fishermen’s Cooperatives, the Dept. could develop and market a 1997 Sport Fishing Calendar.

TABLE 2.2
DISTRIBUTION OF RECREATIONAL FISHING BOATS LICENSED
TO FISH WITHIN BVI WATERS 1987 - 1995

 FIGURE 2.2
DISTRIBUTION OF RECREATIONAL FISHING BOATS
LICENSED FROM 1987 - 1995

2.3 FISH RESOURCE DISTRIBUTION AND STOCK STRUCTURE

The fish resources of the BVI can be divided into five categories as follows:

Shallow Water Reef Fish – includes many of the shallow water fish species associated with coral reefs. Those of economic importance are parrot fish, grunts, porgies, trigger fish, surgeon fish, goat fish, angel fish and trunk fish.

Deep Slope and Bank Fish – composed mainly of snappers and groupers

Coastal Pelagic Fish – includes schooling fish such as bonitos, blue runners, yellowtail and mackerels.

Large Pelagic Fish – such as tunas, swordfish, dolphin, wahoo and bill fishes.

Benthic Invertebrates – includes crustaceans and molluscs such as lobster, conch and whelk.

Table 2.3 gives a summary of the fishery resources of commercial importance, their distribution, stock structure and migratory patterns.

Other fish resources are marine turtles and the Anegada mullet ( Curemal ). This species of mullet is only found in the inland ponds of Anegada and is mainly for domestic consumption.

3.0    ECONOMIC PERFORMANCE OF FISHERIES SECTOR

Fisheries presently contribute a relatively small percentage to the Gross Domestic Product (GDP) compared with other sectors such as tourism. Table 3.1 shows the percentage GDP contributions of this sector from 1981 – 1995. Total GDP contributions were generated from revenues from four sources;

• artisanal commercial fishery
• longline pelagic fishery
• recreational fishery
• vessel licensing fees

Between 1991 and 1993, landings at the BVI Fishing Company are estimated to have generated about US $6, 292, 251 Million from artisanal and pelagic longline fishery. Table 3.2 shows the estimated revenue generated from fish landings at the BVI Fishing Company, while Appendix I gives a breakdown of fish landed at the Company from 1991 – 1996. FAO data on total fish landings from 1981 – 1993 shows a steady increase in the quantity of fish landings from 730 – 1460 tonnes (table 3.1).

TABLE: 3.1
GROSS DOMESTIC PRODUCT CONTRIBUTION
FROM FISHERIES/TOTAL LANDINGS1981 – 1994

However, a large quantity of fish caught within BVI waters is landed outside the territory. Alimoso (1993), estimated that fish caught and landed by USVI based recreational fishing boats in 1988 and 1989 were about 60, 000 – 40, 00 kgs. (150,000 - 90, 000 lbs) of high quality pelagic fish at a conservative value of $600, 000 - $360, 000. The loss in revenue is made more glaring by an analysis of earnings from fishing licenses from 1990 – 1995 (table 3.3, Fig. 3.1).

TABLE 3.3
REVENUE GENERATED FROM FISHING LICENSES
1990 - 1995 EARNINGS/YEAR ( US DOLLARS)

Total revenue during this period came only to US $73, 890. This can be broken down into commercial fishing licenses – US $5,657, sport fishing licenses – US $51, 228 and pleasure fishing licenses – US $17,005.

Since the fishing and tourist seasons coincide, there is considerable potential to develop the market for the recreational and commercial fishery. In 1997, the Conservation and Fisheries Dept. carried out a marketing survey of fish demand assessments. Results confirmed that the peak period of fish demand was during the tourist season. Purchases ranged between 2 - 15kgs/wk depending on the capacity of the establishment (table 3.4). Pelagic fishes such as Dolphin, Swordfish, Tuna, Wahoo, and Kingfish accounted for 61% of the demand. 86.3% of the purchases were made from local fishermen, the BVI Fishing Company and local retailers ( table 3.5,Fig 3.2 ).

TABLE 3.4
ESTIMATES OF QUANTITY OF FISH PURCHASED BY HOTEL INDUSTRY - 1997

FISH TYPES DEMANDED BY HOTEL INDUSTRY

TABLE 3.5
SOURCES OF PURCHASE OF FISH REQUIREMENTS

There is a high demand for fish within the BVI that is partly met by a corresponding increase in the quantity of imported seafood. Review of customs data showed that the value of imported fish and fish products increased from US $1.2 - $ 3.3 million between 1992 and 1995. Table 3.6and Fig.3.3 shows an annual breakdown of seafood imports by commodities from 1992 – 1995. Analysis of data showed a decline in imports of fresh, chilled, frozen fish from 50.7% of total imports in 1992, 18.5% in 1993, 33.5% in 1994 to 11.8% in 1995. However, imports of frozen shrimps, lobsters and other crustaceans showed an astronomical rise from 1.6% of total imports in 1992 to 49% in 1995. The high import value is accounted for by the demand for delicacies such as lobsters and conch by the tourist industry in comparison with the low catch rate of this fishery. Alimoso in 1991, estimated a total catch of 59 tonnes for conch and 94 tonnes for lobsters.

From the above, it is obvious that the BVI fishing industry has the potential to expand and make a greater contribution to the GDP. Its performance has been hampered by such constraints as inadequacies of existing policies, legislation’s, lack of capital and inadequate data. The MRAG 1993 report observed that improved revenue could be generated from recreational fisheries by encouraging investments in BVI sports fishing operations and by making changes to existing policy regarding the licensing of foreign sport fishing vessels. Sport fishing tourism was observed to have the potential to become a major contributor to BVI’s foreign exchange earnings far in excess of earnings from licensing of foreign commercial vessels.

The inadequacies in the data collecting system were evident in the review of seafood imports records from 1992 – 1995. The records most often omitted information on the quantity of the commodity imported (weight) and the cost per unit weight. Consistent records were observed in 1992. It should be emphasized that the sustainability of any development project for the fishing industry would be largely determined by an effective data collection / management system, as well as a realistic stock assessment of the fishery resources. This is important to avoid the disastrous collapses that has befallen previously under – exploited fisheries all over the world.

TABLE 3.6
SEAFOOD IMPORTS DATA OF THE BRITISH VIRGIN ISLANDS 1992 - 1995

4.0    INSTITUTIONAL SET – UP AND INFRASTRUCTURES

The Fisheries Unit was set up in the early eighties as part of the Department of Agriculture, with a staff of three; a fisheries officer, a fisheries assistant and a secretary. It was merged with the Conservation and Fisheries Department in 1989. Responsibilities carried out by the unit include

• Data management
• Fisheries extension
• Protected area management
• Mapping of fishing grounds
• Surveillance and enforcement
• Research and development

Tables 4.1 and 4.2 show the CFD organizational chart and departmental structure. The present staff strength is seven; 1 Asst. fisheries officer, 3 fisheries trainee, I fisheries inspector and 2 data collectors. The position of a fisheries officer has been vacant since 1995. The unit has two boats, one of which is mostly used for surveillance duties. It is 26ft. by 7ft. in length and 450Hp. The second is a training vessel, 30ft. by 8ft. 450 Hp. which is being refurbished. The unit presently lacks a training workshop / field station and appropriate training gears.

 Infrastructures :

There are presently eight landing sites in the BVI. These are located on three Islands namely, Tortola, Virgin Gorda and Anegada. Three more sites are being proposed at Sea Cows Bay (Tortola), Great Harbor (Jost Van Dyke), Gun Creek / The Valley ( Virgin Gorda ) and Anegada.

The existing sites serve over 150 artisanal Fishermen; they have minimal facilities, and most do not have spillways, water and electricity. Dock spaces are also inadequate. Table 4.3 gives an overview of the condition of these landing sites.

4.1 The BVI Fishing Company:

The fishing company was established in 1980 by the government with the aim of

• Improving the incomes of commercial fishermen and their families by providing a reliable outlet market for their catch.
• supplying the processed fish to local and foreign markets

To secure the fishermen’s cooperation, certain incentives and services were to be given by the company such as:

1. providing a reliable market for fish caught ,
2. increasing fishing time by eliminating the need for fishermen to clean and sell their own catch,
3. providing fuel, ice and materials for making fishing gear at concession prices,
4. assisting fishermen to obtain loans from the Development Bank of the Virgin Islands (DBVI) and collecting repayments for the bank.

A comprehensive report on the activities of the fishing company since its inception and its proposed future plans is attached as addendum to this report.

TABLE 4.3
EXISTING FISHERIES LANDING SITES AND THEIR INFRASTRUCTURES 

4.2   Fish Marketing:

The main marketing outlets are the BVI Fishing Company, local fishermen, wholesalers and retailers. The Fishing Company was intended to play a more visible role in fish marketing in the territory in terms of standardizing the quality and regulating the price of fish available to consumers. One of its operational problems was a shortage in the supply of fish particularly the kind and quantity demanded by the tourism industry. Fishermen are not obliged by law to land their catches at the company and

it was observed that only about 11% of the fishermen use the facility. There is thus a substantial demand for quality fish by the local tourist and hotel industry hence an increasing importation of fish products to meet the demand.

The sustainable operation of the Fishing Company depends to a large extent on the availability of the large pelagic species. The need for fishermen to be given incentives for supplying those species cannot be over emphasized. Training for those fishermen who do not have the required skills should also be a priority. As these fishermen become involved in pelagic fishing the level of exploitation of reef fisheries would inadvertently be reduced, thus allowing a replenishment of new stock.

5.0  LEGISLATIONS, ENFORCEMENT AND SURVEILLANCE

The BVI’s Fisheries Ordinance was enacted in 1979 with provisions for the protection, regulation and control of products of the sea. Subsidiary regulations have also been enacted one of which is the Virgin Islands Protected Areas Order of 1990, which prohibits the removal of marine products as well as the anchoring of vessels within a protected area. Under this order the Horseshoe Reef, Anegada was declared a fisheries protected area in May 1990. A summary of domestic legislations and international conventions of relevance to the fisheries sector is given in tables 5.1 and 5.2

The ratification of the United Nations Convention on the Law of the Sea (UNCLOS) in 1982 has necessitated a review of the existing fisheries ordinance. The convention, which came into force 16th November 1994, provides for the establishment and enforcement of regulations to guarantee efficient utilization of marine resources within the 200 miles EEZ of the Party States. To bring the Territory in tune with changing legislation in the OECS and other States, new fisheries legislation is under consideration.

The draft Fisheries Act 1996, has been designed comprehensively to address issues relating to conservation of resources, regulatory and management techniques and enforcement. Particular emphasis is on

• registration and licensing of local and foreign fishing vessels
• regional and access arrangements
• fish processing establishments
• conservation measures
• enforcement and legal proceedings

5.1 Surveillance and Enforcement:

Fisheries surveillance and enforcement are currently undertaken in conjunction with the police marine patrol and have a much lower priority than smuggling and custom duties. The draft 1996 Fisheries Act provides for a more extensive vessel licensing regime and monitoring of catches. The capacity of the fisheries unit to conduct adequate surveillance and to enforce these laws is limited by availability of manpower and trained personnel. The small patrol boat in use now cannot be used in rough sea conditions and is not equipped for offshore navigation. Future duties would require investments in equipment, a patrol boat and trained personnel.

5.3 Licensing:

Under the Statutory Fisheries Rules of 1981, fishing boats must be licensed to operate within BVI waters. The Conservation and Fisheries Dept. / Min. of Natural Resources and Labor presently licenses boats and issues fishing permits. The licenses and permits required are:

TYPES FEE US $

• Commercial fishing boat license 10.00
• Big game sport fishing boat license 200.00
• Pleasure fishing boat license 25.00
• Temporary pleasure fishing permit 10.00

Non- belongers pay an extra $20.00 except on temporary fishing permits.
Table 5.3 gives a summary of fishing licenses issued from 1990 – 1996.

TABLE 5.3
DISTRIBUTION OF LICENSES ISSUED FROM 1990 - 1995

The decreasing number of boats licensed is a reflection of the non-compliance of fishermen with this requirement. The ability of the CFD to enforce the law is hampered by inadequate data and patrol boat capabilities. Compliance could be improved by extending such government incentives as tax reduction on fishing equipment and use of facilities only to licensed boats.

The proposed 1996 Fisheries Act, placed particular emphasis on registration and licensing of vessels. Part II sections 17 – 26, lists the requirements for registration and licensing of local fishing vessels, while Part III sections 27 – 31, deals with registration and licensing of foreign fishing vessels. In line with these requirements, and to adequately harness the revenue earning potential of this process, new licensing fees have been proposed by the Department. This is expected to remove the constraints observed in the present process, such as classification of vessels in terms of size / engine capacity, usual place of mooring, fish species targeted and landing of catches.

PROPOSED NEW FISHING LICENSE FEES

 1.  Commercial Fishing License

Type A vessel: $20 vessel - $10 Captain / owner $5 per crew
Type B vessel: $50 vessel - $10 Captain / owner $5 per crew
Type C vessel: $125 vessel - $10 Captain / owner $5 per crew

2.  Pleasure Fishing License

Pleasure fishing vessel: Local / Belonger $45; $10 Captain / Owner
Pleasure fishing vessel: Resident / Non-Belonger $75; $10 Captain / Owner;
$10 per Visitor
Foreign based pleasure fishing vessel: $125; $10 Captain / owner;
$10 per Visitor

3.  Sport Fishing License

Sport fishing vessel BVI based: $200
Sport fishing Vessel foreign based: $2,000; $25 per person / entry

4. Fishing Tournament License

BVI based fishing tournament: $50 per vessel
Foreign based fishing tournament: $5,000 tournament license;
$25 person / entry

 Note: Pleasure fishing permits to be specific in terms of target species, type of fishing, bag limit and permit duration. Tournament license to be specific in terms of target species, recognition for catches in territorial waters, catch and release requirements, license duration and a policy of boarded fish being landed in the BVI.

6.0 LEVEL OF FISHERIES IMPACT ON RESOURCES

Fishing practices can impact on the sustainable use of fish resources and maintainance of fish stocks at productive levels. One that is highly noticeable is the high involvement of artisanal fishermen in shallow water reef fishery. There were over 6000 traps in use in 1994. CFD surveys, supported by the records of hurricane damage assessment showed that about 4,852 traps were lost in 1995. These suggest an over – exploitation in the trap and possibly lobster fishery. A corresponding decline has occurred in the catch per fisherman and total annual fish landed through this method. A second impact is the incidence of drifting fish traps that continuously trap fishes. This situation has prompted the idea of using biodegradable panels on fish traps. There is also a noticeable decline in the conch and whelk resources due to over exploitation.

Ameliorative measures that have been suggested include the development of commercial hook and line fishery as well as artisanal fishery for such species as tuna, mackerel, dolphin and big game sport fishery. Closed and open seasons or areas and restriction in size could also be imposed for certain type of species that are known to be depleted. Enforcement would have to be done with the cooperation of the local fishermen. These should allow for replenishment of fish stocks.

6.1 Fisheries Management and Conservation:

Various management plans have been proposed for the BVI fisheries sector, but none has been adopted for full implementation. The draft Fisheries Act of 1996, has provisions for the preparation and continuous review of a management and development plan for fisheries. Such a plan is expected to

• identify each fishery and assess the present status of its exploitation,
• specify objectives to be achieved in the management of each fishery,
• specify the management and development measures to be taken,
• specify the licensing programs to be followed for each fishery, the limitations if any, to be applied to local fishing operations and the amount of fishing, if any, to be allocated to foreign fishing vessels.

Under the Act, the Minister of Natural Resources, has powers to demarcate fishing priority areas, fishing protected areas, fisheries management areas and to declare certain fish species as protected for conservation purposes.

7.0    DEVELOPMENTAL ACTIVITIES IMPACT ON RESOURCES

The rapid phase of coastal development activities over the last few years has had considerable impact on fish resources, specifically as it relates to fish habitats and spawning grounds. Habitats that are critical to the replenishment of fish stocks and the sustainable operation of the fishing industry include coral reefs, seagrass beds and mangrove swamps. Data from the Coastal Resources Atlas shows that the BVI has an estimated 7, 568.67 hectares of reef area, most of which are fishing banks for shallow water reef fish. In addition to this, 929.7 hectares of coral reef show evidence of being impacted. This could be attributed to extensive dredging and reclamation activities, and the consequent increase in suspended solids and turbidity of seawater, which can cause death of coral reef formations. Seagrass beds cover an area of 3989.86 hectares and total mangrove area is 114.27 hectares. Clearing of mangroves for developmental purposes has led to the loss of potential breeding grounds for juvenile fishes and a reduction in the role of the mangrove swamp as a settling tank for silted storm water run-off.

Land based sources of pollution that affect fishery resources include pesticide usage in agricultural areas susceptible to storm water run-off. Improper management of land clearing on steep slopes and the consequent soil erosion and siltation of bays all have negative impacts on the sensitive marine ecosystems.

It is essential to note that tourism development in the BVI is oriented towards the environment, more particularly the sea and its resources. The interrelationships between the health and survival of the marine ecosystem and coastal development activities should not be underscored. The observed inadequacy of berthing and mooring facilities to meet the anchoring needs of visiting and locally based yacht traffic has resulted in boats dropping anchors outside mooring fields. This practice has significant impact on the surrounding coral reefs. Other impacts include indiscriminate solid waste disposal at sea and oil spills from barges and other vessels. Table 7.1 portrays some conflict of uses occurring in some fishing banks, while Table 7.2 shows the interrelationships between some development activities and fisheries resource systems.

TABLE 7.1
CONFLICT OF ACTIVITIES AT SEINE NET FISHING BANKS

TABLE 7.2
RELATIONSHIP BETWEEN COASTAL DEVELOPMENT ACTIVITIES
AND FISHERIES RESOURCE SYSTEMS

8.0    REGIONAL TRENDS IN FISHERIES DEVELOPMENT

Within the Caribbean region, several inter- governmental organizations deal with fisheries matters. These include the Organization of Eastern Caribbean States (OECS), the Caribbean Community (CARICOM), the International Commission for the Conservation of Atlantic Tunas (ICCAT), and the Western Central Atlantic Fishery Commission (WECAF). The activities of these organizations include regulation, harmonization of fisheries legislation, data acquisition and research. The BVI has relationship with these and other International agencies such as the International Center for Living Aquatic Resources Management(ICLARM) a non-governmental research organization.

CURRENT REGIONAL INNITIATIVES:

a)  Harmonized Fishery Management Legislation - the OECS has taken steps to put in place some initiatives towards the development of coordinated fishery management in the EEZ’s of member states. These regional policies and activities include the development of harmonized fisheries legislation. The legislation was first developed in 1988 as a legal and institutional framework to manage fishing in EEZ’s and the terms and conditions for foreign fishing access. It was reviewed in 1992 to incorporate developments in relation to common surveillance zones and common fishing zones

b)  Common Fisheries Surveillance Zones – coordination of fisheries surveillance within the OECS region has centered on the use of marine units of member states on arranged schedules. This involves the use of surface vessels up to 120 – 130 kilometers off- shore. Aerial surveillance with use of light aircraft has been provided in some states through foreign funding. The BVI has its own surveillance aircraft. Limitations in the ongoing surveillance system has led to the proposal to set up a coast watch program. In 1991, it was agreed to establish four common surveillance zones, one of which is the BVI. The implication is that the marine units from one Member State could enforce laws of any other member state in the surveillance zone.

c)  Common Fishing Zones – The concept was introduced by OECS in 1991, to stimulate local harvesting sectors to allow OECS fishermen to target migrating pelagic fishes more easily, as they pass through member states EEZs.

The zoning took into consideration the interests of traditional artisanal fishermen by excluding territorial seas, archipelagic and internal waters. The concept necessitates the setting up of new arrangements for vessel registration. Inline with this, member states are being encouraged to remove the registration of fishing vessels from their merchant shipping acts and to enact specific fishing vessel registration. It should be noted that in the proposed 1996 Fisheries Act Parts II, III and IV were drafted in cognizance of these regional developments.

d) The Caribbean Marine Protected Areas ( MPA ) Project – This project is being carried out by ICLARM in collaboration with the CFD. British Virgin Islands and the University of the West Indies, Jamaica. The focus of the project is to investigate recruitment of juvenile fish to coral reefs in order to help formulate guidelines for the design of MPA which benefit fisheries. Light-traps would be used to study fishes early in their lives before they settle on coral reefs, while visual censuses and small-meshed fish traps would be used to identify older juveniles. An integral part of the ICLARM project would be to investigate the bioeconomics of MPAS in both Jamaica and the BVI with reference to fishing, tourism and integrated coastal zone management.

9.0    EMERGING ISSUES

9.1 Fisheries Policy:

Various management plans and proposals have been made over the years but none has been fully adopted and implemented. There is also insufficient integration between fisheries and the other sectors of the economy whose activities might impact on fish resources. There is a need to set clear policy guidelines on what the future of the fisheries sector in the BVI should be.

9.2 Recreational Fisheries:

Issues that have been observed are as follows:

a)  The level of BVI participation in recreational fisheries has been less than 50% in almost 10 years, while earnings from issuing of recreational fishing license in 6years was only U.S. $68, 233.

b)  Foreign based fishing boats constituted 71.3% of licenses given between 1987 and 1995. These vessels operate within BVI’s fisheries zone and land their catch at their home base, the value of which has been estimated to be $600,000 and $360,000 in 1988 and1989 respectively.

c) In comparison, seafood imports between 1992 – 1995 was valued at U.S. $8,531,304.

It is apparent that a large percentage of the benefits and income generated by sport fishing tourism accrues offshore to neighboring islands. This portrays the need to harness the revenue earning potential of the sector in various ways:

• Encourage local investment in the fishery particularly Big Game Sport Fishing.
• Increase license fees across the board, particularly for foreign-based vessels.
• Review the terms attached to recreational fishing licenses with regard to catching fish for sale. Incentives could be provided to encourage compliance with regulations on landing and reporting of catches.
• Regulate the fishery by putting in place conservation measures to protect targeted species from over exploitation.

9.3 Economic Performance of Fisheries Sector:

Earnings from two major sectors, tourism and financial services mostly support the economy. The GDP contributions of the Fisheries sector have been relatively low but steadily rising. There is a high potential for the sector to contribute more if proper management measures and strategic investment initiatives are put in place. This should in the long term, enhance the diversification of the territories economic base. The situation as of now presents the following issues-

a) Meager revenue from licensing of fishing vessels for all forms of fishing activities i.e. artisanal, commercial and recreational; resulting from an overdue review of policies in the sector.

b)  Huge revenue loss from illegal fish exports and inadequacies in the present marketing system. Large quantities of fish caught by artisanal fishermen are sold outside the territory.

c) Consistent increase in value of seafood imports, particularly with respect to frozen shrimps, lobsters and other crustaceans, which are in demand by the tourist industry. It rose from 1.6% of the total value of imports in 1992 to 49% in 1995.

d) High reliance of the fishing industry on imports of materials to maintain its services. Boats, engines, fishing gears and live bait are most often imported. A lot of capital is thus required to venture into the industry.

In view of the above specific policy directions and legislative regulations need to be put in place to manage the resources within the sector and increase its contributions to the GDP. Initiatives could include the diversification of the fishing industry into new areas with high yield potentials. The following could be considered:

- Increase in commercial fishing license fees which can be justified by increased government investment in the fisheries sector in terms of provision and maintenance of facilities such as landing sites, provision of guarantee on loans for purchase of fishing boats and equipment; customs duty exempt for fishing equipment.

- Establishment of a local bait industry.

- Investments in aquaculture and mariculture and the demarcation of some bays for this type of fishery such as the Cove in Salt Island, Paraquita Bay on Tortola, Hans Creek on Beef Island and Anegada Ponds.

9.4 Fish Marketing:

Marketing is not fully streamlined as fishermen still process and sell their own catch and seafood imports are high. The issues to be considered are:-

a)  The BVI Fishing Company as a marketing outlet depends on supply of fish caught by local fishermen, although there is no regulation compelling fishermen to land their catch at the company or any other landing sites.

b)  Supply of fish to the tourist industry is subject to the quality, preservation, processing and type of fish required; which is most often pelagic species and the peak period of demand which is during the tourist season.

c)  Consumer’s precaution to the purchase of shallow water reef fish and some pelagics, a significant proportion of which are known to be associated with ciquatera.

There is need for effective marketing strategies that would include provision of incentives to use the facilities provided by the fishing company. The potential for exportation of such fish species as Crevale Jack and Blue runners, which are caught in abundance but which local market is unreliable, should be considered.

Consumer confidence in locally caught fish products would be enhanced with the development of a research project to examine the extent of ciquatera poisoning in BVI fish stocks. An obligatory testing of all species throughout all seasons with ciquatera testing reagent could be initiated.

9.5 Surveillance and Enforcement:

Surveillance and enforcement plays a big role in protecting the rights of licensed fishermen and the present arrangement is still inadequate to stop illegal fishing and export activities that constitute a loss of revenue to the government. There is need for the establishment of a fisheries surveillance and enforcement unit with trained officers and appropriate equipment including a patrol boat capable of a greater range and improved sea-going ability.

9.6 Infrastructures:

There are few landing sites with adequate facilities to serve the 150 fishermen, who have to hustle for jetty space with other boating activities. High rental charges are being charged for use of privately owned commercial jetties. Landing sites serve both as outlets for the purchase of fish landed by fishermen and data collection points. They could facilitate the grouping of fishermen into cooperatives, with benefits such as training and increased environmental awareness. The need to establish more sites with basic amenities such as electricity, water, dock/ ramp, storage shed and security should be a priority. The dock facilities at the BVI Fishing Company need to be made more accessible to encourage its use by bigger vessels.

9.7 Resource Conservation:

Management measures presently in place are those relating to the minimum size of lobster, protection of berried female lobster and minimum mesh size for fish traps. The juveniles and spawning adults of fish are not protected. Few of the habitats used as breeding areas are protected. The only marine protected area related to fisheries is the Horseshoe Reef in Anegada.

Marine protected areas have been shown to be capable of benefiting fisheries and conservation in two major ways:

• They supply a secure source of eggs and juveniles to neighboring fisheries thus providing an insurance against over exploitation and boosting catches.

• Restriction of fishing allows adults to reach their maximum size and populations increase, when high enough, adult fish may migrate out of the protected area into adjacent fishery where they can be caught.

There is need for demarcation of more fisheries protected areas with such regulatory measures that would help to rejuvenate the overexploited reef fish stocks.

9.8 Data and Information Management:

Direct data on fish resources are not adequate for inshore and reef species. Most of the information in this review was derived from regional and international reports. Data collection is often inconsistent. The Fisheries unit has three data collectors who are often faced with skepticism and reluctance by fishermen to release information on their catch. There is need to strengthen the capacity of the fisheries unit to computerize its licensing, catch and fishing effort data an gain the co-operation of local fishermen.

9.9 Identified Problems and Constraints

A.  Artisanal/Commercial Fishery

1.  Over exploitation of fish stocks.
2.  Fishing practices contribute to depletion of reef fish stocks.
3.  Over-exploitation of present stocks of benthic invertebrates and crustaceans.
4.  Age structure of fishermen influenced by changes in focus of the economy, social status and high capital requirement.
5.  Increasing imports of shellfish to meet demands by the tourism servicing industry.
6.  Under utilization of pelagic fish stocks due to higher capital requirement, length of time required for fishing.
7. Illegal slaughtering of leatherback turtles during nesting season and catching of other turtles outside

  B.  Recreational Fisheries

1.  Level of BVI participation in recreational fisheries less than 50% in ten years (1987-1996)
2.  Earnings from recreational fishing licenses in six years (1991-1996) only US$68,233
3.  Foreign based vessels operate within the BVI Exclusive Fishing Zone and land their catch at their home base
4.  Permits/licenses issued without specified conditions/term
5.  Several registration/clearance requirements and fees imposed by different agencies create additional expenses for sport fishermen who want to use the BVI
6.  License fees are low and need to be revised

C.  Performance of the Sector

1.  Meager revenue from licensing of fishing vessels for all forms of fishing activities.
2.  Huge revenue loss from illegal fish exports and inadequacies in the present marketing systems.
3.  Consistent increases in value of seafood imports particularly frozen shrimps. Lobsters and crustaceans in demand by the tourist industry. This rose from 1.6% of total seafood imports value in 1992 to 49% in 1995.
4.  High reliance of fishing industry on imports of materials and equipment.

D.  Fish Marketing and Distribution

1.  Disenchantment of local fishermen with services provided at the fishing company, no regulation to back the operation of the fishing company.
2.  Tourist industry demands are mostly for pelagic species.
3.  Some shallow water reef fish known to be associated with ciguatera (fish poisoning).
4.  BVI Fishing Company Recovery Plan still pending.
5.  No Government venture into exportation of fish not locally preferred.

 E.  Surveillance and Enforcement

1.  Inadequate personnel and equipment to carry out fisheries surveillance and enforcement within the Conservation & Fisheries Department.
2.  Part-time fishermen not inclined to register for fear of taxation.

F.  Legislation

1.  The proposed 1996 Fisheries Act is still pending.

G.  Infrastructure

1.  Few landing sites with inadequate facilities.
2.  High rental charges at privately owned jetties.

H.  Resource Conservation

1.  Present fishing practices have resulted in over exploitation of reef fish stocks with declined catch landings.
2.  Habitats and spawning grounds are impacted by land development and tourism activities.
3.  Illegal collection and export of exotic fish species.
4.  Inadequate management measures particularly for the protection of juveniles and spawning adults.
5.  Inadequate management of physical development activities and water use.

I.  Data and Information Management

1.  Inconsistency in present data collection system.
2.  Reluctance of fishermen to release information on fish exports or landings.

10.0   PROPOSED POLICY GOALS & STRATEGIES

The fisheries policy should focus on promoting sustainable growth and economic performance of the sector within a diversified economy. It should also facilitate the provision of an affordable fish supply for domestic consumption. Hence, there was a need for the identification of broad policy goals both medium and long term. The attainment of which will require several strategies. The following policy goals and strategies are being proposed for consideration.

 10.1 Fisheries Policy

The Government should set broad policy guidelines, both medium and long-term for the fisheries sector.

Policy Goal

• To promote sustainable management and growth of the sector within a diversified economy.

Objectives

• To increase the production of fish for local use and for export.
• To fully exploit the available and under-utilized fish resource.
• To improve the living standards of the fishermen.
• To ensure environmental sustainability within the aquatic areas related to the fisheries sector.

10.2  Artisanal/Coastal Pelagic/Pelagic Fishery

Policy Goal

• To strengthen the capacity of artisanal fishermen by encouraging/promotingfishing further off-shore.
• To improve the extension services available to fishermen.
• To revive domestic production/reduce high imports of shellfish.
• To promote fishing as a lucrative occupation.
• To develop the potential for exploitation of pelagic fish stocks.

Strategies

• Facilitate more efficient fishing by training of fishermen in improved fishing techniques.
• Establish fingerling supply centers for aquaculture.
• Encourage ventures into fish farming and demarcate some Bays for this type of fishery.
• Promote long-line fishery.
• Establish a Government supported venture into purchase of an equipped trawler for long-line fishing.
• Conduct scientific studies to verify BVI’s fish resource stocks, spawning seasons and fish migratory patterns for developing effective management measures.
• Establish fishermen cooperatives.
• Increase the vessels involved in long-line fishery to ten.
• Explore opportunities for export and enhance local consumption.
• Purchase of a well-equipped multipurpose/training vessel for the Conservation and Fisheries Department.
• Increase surveillance efforts/protect the fishing banks from illegal fishermen.
• Provide security of fishing boats within BVI’s fishing banks/territorial waters.
• Government to ensure a guaranteed market and appropriate price for landed catches.
• Enforcement of regulations on marine turtles.

10.3  Recreational Fisheries

Policy Goals

• To harness the revenue earning potential of the fishery.

Strategies

• Increase fishing licence fees across the board, particularly for foreign-based vessels while giving a waiver for locally based sport-fishing vessels.
• Encourage local investment in the fishery, particularly Big Game Sport Fishing.