Development of sustainable fisheries in East

Timor
Joeli Veitayaki’s, paper to Conference on Sustainable Development in East
Timor, January 25-31 2001 (a shortened version of it appears in Russell
Anderson and Carolyn Deutsch (eds.)(2001) p. 65.

Abstract
While fisheries resources in East Timor can be used to aid the reconstruction
effort and provide people with opportunities to improve their living conditions,
these goals can be attained only if the fisheries resources are sustainably
utilised. Sustainable fisheries require that fisheries resources development be
pursued differently from what is commonly practiced in coastal communities.
The new methods will need to make use of all the information available to
address the commonly mentioned issues of fisheries development and
propose new approaches, policy and strategies. Components of sustainable
fisheries development that will be emphasised in this paper include people and
their activities, the ecological setting in which people live and the resources
available for their use, level of technology, means of production and necessary
institutions.

This is the opportune time to attempt to implement sustainable fisheries

development in East Timor. This reconstruction period marks new beginnings
in the use of the ideas that are widely discussed but are being slowly
introduced into mainstream fisheries development. Some of the themes that
will be proposed include the participation of people, the sustainability of
development projects, maintenance of healthy fish stocks, promotion of
aquaculture as an alternative to capture fisheries, promotion of protected areas
and the emphasis on post harvest treatment and marketing.

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Summary
• While the fisheries resources are important to the rebuilding of the
economy of East Timor and the provision of new opportunities to improve
people’s lives, these goals can be attained only if the development of
fisheries are sustainable.
• Main fishing sectors that can be developed include subsistence, artisanal
and commercial, industrial, aquaculture and recreational fisheries.
• People are the essence of any form of sustainable development, which
need to be accompanied by economic progress and a reduction in ethnic
and social inequalities.
• People must participate in deciding on fisheries development activities if
these are to be sustainable.
• The ecological setting is important because sustainable development is
dependent on natural resources and environmental endowments that are
closely interlinked.
• Natural resources are potentially sustainable but they require that the
resources are not allowed to deteriorate as a result of use.
• Sustainable fisheries is where the ‘level of fishing mortality does not
jeopardise the capacity of the fishery to produce the maximum sustainable
yield on a continuing basis’ (NMFS and NOAA 1997:5)
• Sustainable development must be organised around production levels,
methods and use technologies that are clearly understood by the people
involved.
• Sustainable development requires the presence of institutional capacity to
mobilise the social, political and economic resources of the disadvantaged
communities.
• The problems of sustainable fisheries development are caused by factors
associated with inappropriate development theories and approaches,
diverse living conditions, inefficient development assistance and the
conflicting influence of people’s cultures.
• Restricted resources, capital and limited trained human resources have led
to a succession of damaging development mistakes.
• The project cycle should replace existing project design methods that
featured top-down and externally driven development approaches.
• The involvement of people in different parts of the country in different
development projects should be based on cost effectiveness and other
objective criteria.
• Sustainable development needs a carefully coordinated and integrated
plan involving all stakeholders.
• An independent Sustainable Development Authority (SDA) should
supervise the institution of project cycle approach and the introduction of
development projects.

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• The people involved in fisheries development projects should be provided
comprehensive training and follow-up activities.
• Sustainable development activities should involve the people who are
ready to be involved in the development activities.
• Government assistance must be used to provide suitable institution and
infrastructure.
• Private sector involvement must be promoted and emphasised.
• A new system of development funding must be developed to avoid the
introduction of unilateral projects and the emphasis on funding periods.
• The new changes proposed here are ideal for this reconstruction period as
approaches that are more difficult to introduce in normal circumstances can
easily be undertaken under current conditions in East Timor.

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The Development of Sustainable Fisheries in East
Timor

Introduction
Fisheries resources in any coastal state provide easy and convenient basis for

economic development that can contribute significantly to the improvement of

living conditions. Fisheries resources can provide food for the people and also
provide a source of income, employment and trade both within the country and
externally. Fisheries resources can easily be exploited because of their easy
access and the relatively low investment required by the people involved.
Unfortunately, these above conditions are also the reasons why control
measures should be instituted in any fisheries development. This control is to
ensure that the level of fishing mortality does not jeopardise the capacity of the
fishery to produce the maximum sustainable yield (MSY) on a continuing basis
(NMFS and NOAA 1997:5).
In this paper my aim is to explore some of the issues relating to the
development of sustainable fisheries that you may consider as you undertake
the mammoth task of rebuilding life and the economy in East Timor. I am not
an expert on local conditions but am here to offer some observations that are
based on fisheries development experiences in the Small Island Developing
States (SIDS) in the South Pacific. These observations are relevant because
these coastal states and communities are still grappling with the same issues
and their experiences provide lessons that can be used here. Ironically, the
new approaches, policies and strategies highlighted here as part of sustainable
development may be easier to implement under existing conditions in East
Timor.

Components of sustainable fisheries development that will be emphasised in

this paper include people and their activities, the ecological setting or
environment in which people live and the natural resources they use, levels of
technology, means of production, infrastructure and institutions. Some of the
themes that will be proposed include the participation of people, the

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maintenance of healthy fish stocks, the integration of environment and
development and the promotion of alternative development approaches.

Fisheries sectors
Fisheries is used here to include the harvesting of all living organisms by
humans for the purpose of sustaining themselves or for trade. Fisheries
sectors differ in the resources they use, the people involved and the
investment requirements. The five main fisheries sectors are the subsistence,
artisanal and commercial, industrial, aquaculture and recreational.

Subsistence fisheries are usually conducted by local coastal communities in

nearby fishing areas. Most of what is produced in this sector is consumed
locally by the fishers who may still share parts of their catch according to
customary practices. The catches are generally small but are unrecorded.
However, this sector is very important because of its contribution to local food
supply and employment. People need only the most basic equipment to be
involved in fishing and trading. In many countries in the South Pacific, this
sector is dominated by the women who may fish on a daily basis.

A feature of this sector that is now widely acknowledged is the traditional

knowledge and skill including management practices that are possessed by
coastal communities which have used the resources of the coastal area since
time immemorial. In many countries within our region, this knowledge and
traditional arrangement is now being used in an attempt to introduce more
effective fisheries management arrangements.

Artisanal and commercial sectors are also dominated by local people whose
aim is the provision of fish for local consumption. However these fishers who
are mostly men fish for sale to the general public and are more organised in
their fishing activities. These fishers fish further out then the subsistence
fishers and use canoes, punts, better gear and do so consistently. These
fishers require facilities such as ice making capacity, petrol outlets, markets,
ports, repair and maintenance facilities, banks, stores and amenities like
electricity.

Artisanal and commercial fishers aim to maximise their income and can quickly
deplete the resource base. This is why more control should be introduced to

5
ensure that the number of fishers is contained and that the fishers do not use
destructive fishing methods. Controlling effort in this sector is achieved
through licensing, closed seasons, limitation on size and equipment. However,
surveillance and enforcement of these management practices are often poor
because of the lack of manpower and the vast areas and huge numbers of
people involved which meant the commitment of more resources. Resource
management in this sector has been associated with the promotion of
aquaculture, protected areas and the emphasis on maximising the value of the
commodity through post harvest treatment and marketing.

Industrial fisheries are associated with big business mostly foreign owned.
This sector is largely geared towards the export market and the production of
processed foods. These operations are often located in major centres and
may be associated with canneries or processing outlets. Industrial fishers fish
for mostly tuna and billfish in the EEZ and High Seas and involve the main
Distant Water Fishing Nations.

Most of the nations in the South Pacific have been unable to have their own
industrial fishing companies and rely on the Distant Water Fishing Nations
through licensing arrangements and joint ventures. The control of the
industrial fishing efforts is similar to that in the artisanal and commercial sector
but surveillance and enforcement are more demanding because of the nature
of fishing and the distance involved. In the South Pacific, the countries have
used international agreements to protect their interests over these fisheries
resources.

Aquaculture is rapidly becoming a notable source of food and products for sale
in local markets and for export. Apart from the benefits of guaranteed supply,
aquaculture is also promoting the use of 'barren sea area' for productive fishing
activities. However, aquaculture requires investment and skills that people
need to be introduced to. Concerns relate to the ecological impacts of
introduced species, the destruction of natural habitats and the lack of technical
know how. Furthermore, aquaculture on land has been associated with
pollution and the loss of land. Obviously aquaculture must also be carefully
planned and monitored to ensure that the benefits are not superceded by the
negative impacts.

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Finally, recreational fisheries include all types of fishing activities where
enjoyment and pleasure are the main aims of the activity. Included in this
category are the popular game fishing, aquarium and ornamental fish trade,
diving, snorkeling and reef walks. Recreational fishing is closely associated
with the tourist industry. Although people pay heavily to be involved in these
activities, control measures are needed to ensure that these activities do not
negatively affect the fish stocks and the coastal environment in general. For
example, the removal of live coral and aquarium fish need to be properly
monitored given the large market outlets available overseas. In addition, the
number of tourists arriving at the reefs must not be allowed to overwhelm the
natural conditions required for the healthy maintenance of coral reef colonies.

The development in these different sectors need to ensure that the people
involved in the development activities benefit and that the fisheries stocks are
maintained at healthy levels that can continue to support the fisheries on a
perpetuating basis. But how can this be done in the situation where people
have the resources and are attempting to utilise them to maximise their return.
Experiences with fisheries development projects throughout the South Pacific
illustrate the magnitude of the problem.

In trying to achieve sustainable fisheries development, I propose that we begin

with fisheries development projects because the sustainability of fisheries
resources are dependent on the sustainability of fisheries development
projects. Development projects are group of activities that are intended to
accomplish clear goals over a specified period, drawing on a set of agreed
upon human, financial and ecological resources (McAllister 1996; The Working
Group 2000). Fisheries development projects in any of the above named
sectors can influence the sustainable development of fisheries because
properly planned projects can be perpetual while poorly planned ones result in
wastage because the development activity will collapse either because the
people give up or the fish stock is depleted. Therefore in attempting to address
the development of sustainable fisheries, starting with sustainable fisheries
projects is a logical first step as the aims and the considerations are the same.

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Fisheries development projects
To illustrate the process involved, I will describe briefly the experience in Fiji.
Between 1981 and 1990, the DP 8 and DP 9 eras, the main objectives of the
fisheries sector were to generate further employment opportunities in the
exploitation and processing of marine resources, increase production for local
consumption, enhance the value added in fish production for exports, and to
regulate and control the exploitation of fin and nonfin-fishery products (Fiji,
Central Planning Office 1985). To pursue these objectives, the Fisheries
Division promoted four fisheries development programmes.

The Rural Fisheries Development Programme was designed to promote the

development of the fisheries potential of remote regions of the country, provide
basic protein requirement, create further opportunities for employment and
income generation and integrate rural communities into the formal sector of the
economy. The Commercial Artisanal Fisheries Development Programme was
designed to provide suitable fishing vessels to commercial fishers to enable
them to fish in areas more distant from the main urban centres, ensure
adequate ice supply, storage, improved markets, fishing gear and equipment
and provide technical assistance, training and facilitate credit. The Industrial
Fisheries Development Programme was aimed at expanding the skipjack tuna
industry, the use of tuna-processing facilities and alternative fishing methods
such as purse-seining and longlining. Lastly, the Rural Aquaculture Extension
Programme was designed to provide an alternative protein source for the
inland communities, release grass carp into the rivers as a biological control for
the river weeds, provide fish fry to fish farmers, promote aquaculture as a
source of income and employment in rural areas and provide training to fish
farmers.

Under each of the programmes different project activities were undertaken. As

part of the Rural Fisheries Development and the Commercial Artisanal
Fisheries Development Programmes for example, fisheries schemes and fish
cooperatives were set up around the country. The people were encouraged to
take up fishing as a source of income, which was also promoted under the
rural development and affirmative action initiatives. There were fish collection
schemes offered by government together with new fishing boats and better

8
gear. In addition, ice plants and jetties were provided in the main centres to
facilitate the sale of fish in urban markets. Trainings were provided and loans
were heavily subsidised. In spite of these incentives, the bulk of the
development project activities failed. Perhaps the only achievement was the
vast increase in output from the sectors that were subsequently related to the
depletion of fisheries resources in the main fishing areas.

With the Industrial Fisheries Development Programme, the Government

formed a skipjack fishing company and provided incentives such as tax and
fuel concessions. Despite this the sector was heavily dependent on
government assistance and foreign companies. In the Rural Aquaculture
Extension Programme, local capital and foreign aid was committed to prawn
culture and seaweed farming but the end results were disappointing. Many
more attempts have been undertaken since but the results have been mostly
the same disappointing ones.

The failure of these development activities all point to the wrong approaches
that have been used resulting in unsustainble fisheries development. In cases
where production had increased, the resources were depleted. In other
instances, where people were enticed, they were not committed or consistent
or were not appreciative of the larger picture. In some cases the people who
planned the activities did not properly understand the situations. The end result
is that sustainable fisheries development is still being attempted in many
countries like Fiji.

The problems of fisheries development projects

Some of the problems that are associated with the failure of fisheries
development projects include the use of inappropriate development
approaches, poor planning and lack of consultation, poor socioeconomic
analysis, lack of infrastructure and ineffective institutional setup. The use of
inappropriate development approaches is a problem because it is based on the
assumption that the socioeconomic conditions in the different areas are
homogenous when they are not. These varying socioeconomic conditions
affect the performance of fisheries development projects in different ways. For
example, commercial fisheries development requires that the people involved
have good business acumen to which most people in rural communities were

9
unaccustomed. Other requirements to meet the costs, organise regular fishing,
secure good prices for their products and keep good records of transactions
are foreign to most people. Although some training was provided these were
not very effective as the selections were not properly conducted. In many
cases, the range of skills taught was not adequately covered providing the
impression that the training was only symbolic.

Poor planning and lack of consultation with the local communities is common
when people are enticed to be involved in development activities they do not
need and fully understand. Fisheries development projects are introduced
without proper socioeconomic assessments. The assumptions are made that
people need to be involved in an economic activity and that they would support
whatever was introduced. Experience has disproved this because the project
was different from what the people require. For example the need for a source
of income in rural communities is periodic and often low and reflects the low
income. Moreover, people are hardly involved full-time in these development
activities. These characteristics need to be understood by the planners
because they influence the productivity of the people involved and ultimately
the success of the project.

People involved in fisheries development projects were not carefully selected.

This was important because those involved in the development projects were
expected to fish regularly and to meet periodic payments, commitments, which
require that people, adjust their lives. Thus, the level of preparedness must be
realistically checked before a project is introduced. In some communal
fisheries projects, the people are required to contribute freely their labour and
resources. In others people lack motivation, commitment and consistency.
Consequently, the people struggle to meet their commitments to the
community venture and their families and quickly lose interest in the
development activity. These community projects hinder economic activity in the
communities because they do not meet people’s real needs.

In rural areas, people commonly treat fisheries development projects as

opportunities to allow them access to government assistance. People hurriedly
commit themselves in project activities without inquiring whether they are likely
to succeed. Questions about the influence of infrastructure, distance and

10
viability are ignored and people do not appreciate the magnitude of the
challenge until they are faced with reality well into the project. These people
therefore commence their development activities with vigor and enthusiasm
that then quickly dissipates when the first sign of trouble emerge.

Fisheries development projects are directed at the communities to maximise

their impacts in improving people’s lives. Unfortunately, this noble objective is
usually unattainable because the people were not adequately prepared for
these activities. In some other instances, the failures of community ventures
were due to the many divisions in the communities. While some people may be
committed to the project, the majority would be indifferent and would not
undertake any added responsibility. The carefree attitudes of most villagers
needed to be changed to be consistent to the objectives of the project. In
addition, such projects demand leadership levels that are hard to find in most
communities undergoing change. It is important that everyone involved in the
introduction of a project acknowledges the changes that are required to make
the project sustainable.

Economic considerations must be properly and realistically addressed.

Commercial fishing require that the people involved consider factors such as
fish demand, market conditions, prices, facilities, regularity of supply and
fishing technology and methods. Cash control and management are as
important and must be emphasised. Loan repayments must be a major priority.
Fishers must have savings for maintenance and repairs and loan repayments
when fishing is not done. In addition, the necessary infrastructure must be
provided. Banking facilities, ice storage, maintenance workshops and
accessible markets need to be provided because of their influence on the
viability of the fisheries development projects.

The above mentioned problems were not assessed as the fisheries

development projects often were not properly evaluated in the past. As a
result, the issues of costs and benefits and problems and achievements were
not well understood and used for the formulation of better projects. It was also
evident that government departments and donors externally drove the projects
with little input from the people involved. Two sets of problems that
characterise failed fisheries development projects include the peoples lack of

11
understanding of the requirements of the development activities that they are
involved in and the lack of appreciation by policy makers and development
agencies of the influence and significance of local socioeconomic conditions.
For example, people need to understand the objectives of the project and the
reasons for regular production. On the other hand, the policy makers and
development agents must appreciate the lifestyles of the people, their value
systems and their needs. These needs include the required infrastructure and
institutions. Therefore, the bulk of the fisheries development projects were
poorly planned and it was not surprising that many of them failed to achieve
their stated objectives.

Sustainable fisheries development only has been emphasised after the 1992
UN Conference on Environment and Development. Since then, the action
plans such as Agenda 21, the Barbados Action Plan and the FAO’s Code of
Conduct for Responsible Fisheries have emphasised the need for sustainable
fisheries development. The international community is now convinced that any
development that does not address its ecological impacts can not be
sustainable. The importance of ensuring the optimum exploitation of fisheries
resources and the reduction of pollution, environmental change and the
introduction of exotic species are now part of the requirements for sustainable
fisheries development programmes.

Proposal for sustainable fisheries development

Sustainable fisheries development requires a new approach that emphasises
integration and rationalisation. This then brings into question the role of
existing ministries, which continues to promote sectoral development and
disregards the linkages between the different activities. These ministries are
tied to the old approach that emphasises the maximum use of the resources
and ignore their ecological requirements. What is now required is management
strategies that involve all stakeholders and not just those in the ministry. This is
why you in East Timor have an advantage over places where these institutions
are established.

The line ministries must be reorganised so that the sustainable development of

natural resources is made the focus of all resource development activities. This
would require a sustainable development authority or ministry that functions

12
like the National Planning and Development Authority. The authority must cut
across ministerial boundaries and must have the clout to direct all resource
development activities. The authority must:

• amass all available knowledge and information regarding natural and

human resources involved in proposed fisheries development initiatives.
• analyse this data in terms of development activities and policies and
analyse the appropriateness and efficiency of the economic activities
presently pursued as development activities as well as proposed ones that
might be introduced
• exercise entrepreneurial function by discovering new opportunities for
profitable private investment, and where necessary, take steps to bring
together the management, capital and labour needed to launch new
enterprises
• explain alternative possibilities to the people to help them make rational
decisions
(Higgins 1989:190)

The Sustainable Development authority should conduct the required checks on

all development proposals related to the development of natural resources.
These checks should allow the authority to finalise plan on the types of
development activities that can be economically and sustainably carried out in
different parts of the country. The authority would be more effective and
consistent than the different ministries pursuing sustainable development
separately. The authority will promote aquaculture in areas it determine as
appropriate and entice coastal communities in chosen places to be involved in
the protection of their marine resources. Wherever possible the authority will
assist people to combine their development activities with the widely
acknowledged concept of protected areas. The authority will incorporate
environment and development.

The Sustainable Development authority should also provide the institutional

support for the people involved in development activities and promote the
involvement of the private sector. The economic activities engineered by the
authority should create employment, increase local capacity and involvement
and contribute to economic growth. In addition, the authority must identify other
alternative fisheries development activities that can be undertaken. For
example, post harvest treatment of fish and marketing are important to the
sustainable fisheries development and can be the subject of research done by

13
the authority. Training and capacity building will be an integral part of the
authority’s work to ensure that everybody involved in any fisheries
development activity is well prepared and fully aware of their responsibilities to
the project. The authority can also spearhead the research and manage the
databases that would detail the available information on all aspects of
sustainable development.

The development of sustainable fisheries development requires a carefully

coordinated and integrated plan. The plan should determine the form of
development undertaken and must be long-term. The plan should be produced
by the Planning and Development authority that has the mandate to determine
the desired course of action. The plan must specify the types of fisheries
development, the people to be involved and the parts of the country where
such activities can be undertaken. These decisions would be determined by
cost-benefit analysis, evaluation of the ecology of chosen resources and
sociocultural situations.

The plans must be based on realistic assumptions, which require the use of
quality databases, and information necessary for good decision making. For
instance, plans to develop commercial fisheries require a healthy stock, skilled
fishers and people who are competent in related activities, infrastructure and
institutions. The local situation should determine what development activity is
undertaken and the people involved. Government on the other hand must
provide the social and economic environment in which the people are involved.

The plan should identify the types of fisheries that should be supported through
development funding. However, instead of having funding periods, the new
arrangement should provide funding support to all fisheries development
activities that are passed as viable by the Sustainable Development authority’s
internal evaluation and assessment teams. There should be no restriction on
the funding time and funding assistance should be given to people who meet
the prescribed conditions.

The project cycle approach should be adopted in the planning and introduction
of development projects. The project cycle covers project identification,
formulation, implementation, and monitoring and evaluation (Australian
International Development Assistance (AIDAB) 1988); Overseas Development

14
Assistance (ODA) 1995; Hinds 1998). The approach emphasises need
identification, feedback and review mechanisms that have not been addressed
in past fisheries development projects. The cycle begins when an idea for a
project is developed and ends when the project is completed and the
outcomes evaluated. The cycle is significant because the results of the final
evaluation are incorporated into the design of future development activities.
This is an improvement on traditional project design where those linkages have
not been used. In contrast, project cycle uses the iterative learning processes
that quality development entails.

The project cycle follows a process rather than a blueprint approach. The
design can be altered during implementation as a consequence of the
monitoring. The benefit of the process is that while the outcome cannot be fully
known in advance, the interim progress can be evaluated and monitored. Such
evaluation and monitoring will steer the project towards the desired outcomes.
Fisheries development projects thus should be designed to improve the lives of
the beneficiaries who should be consulted in identifying the development
activities. This approach should ensure that project identification address the
needs and problems affecting the people in the community in a manner that
reflects actual conditions.

Project identification should set realistic goals and objectives and identify the
sources of risks and propose ways of addressing them. At the project
formulation stage the idea from the identification stage is made into a proposal.
Project design involves specifying the objectives, activities, inputs (resources)
and outputs (expected results). Different options should be assessed and
appraised keeping in mind the socioeconomic conditions in local areas.
Feasibility studies, outlines and detailed studies may be required during this
phase to ensure that whatever project is formulated is tailor-made for the area
and is appropriate to address the required need. Project design also involves
project appraisal, which reexamines the project plan to assess the
appropriateness and financial viability of the proposed activities. The changes
proposed at this stage are mostly to tune the project design and to define the
arrangements for monitoring project performance and achieving the project

15
objectives. It is crucial that the project formulation should involve continuous
interaction between the local communities and the external advisers.

Project implementation requires arrangements that would facilitate bottom-up

decision-making. For instance the disbursement of funds must be quick to
avoid unnecessary delays. An onsite office is required to assist in
communication with the local people. The presence of project officials should
boost the interest among the people and allow for regular follow up activities.
Ongoing monitoring should be concluded during implementation to provide
information and indicators on the impact of the project on the people and the
resource base.

Project evaluation and monitoring should be done independently during

implementation and undertaken so that the necessary actions to improve or
correct problem areas are identified. The evaluation and monitoring should be
conducted explicitly clearly stating what is being measured and the reasons for
these measurements. All aspects of the project from the economic, ecological
and sociocultural must be covered in the evaluation and monitoring. The
positive and negative impacts of the project identified during this process are
then used to determine the changes to the project. The evaluation and
monitoring described here has not been properly carried out in past fisheries
development activities. This is why the same development mistakes have been
repeated.

Conclusion
The lack of sustainable fisheries development up to now are largely due to the
use of inappropriate development approaches and strategies which did not
align with the situation in places where the people involved in the development
activities live. Moreover, the development activities ignore the ecological
consequence of the development projects. This is why the Sustainable
Development authority, the proposed funding arrangements and the project
cycle approach provide logical alternatives. These suggested changes should
alleviate many of the problems of fisheries development projects up to now
and contribute to sustainable development.

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Bibliography
Australian International Development Assistance (AIDAB) 1988

Fiji, Central Planning Office 1985

Hinds 1998

McAllister 1996

NMFS and NOAA 1997

Overseas Development Assistance (ODA) 1995

The Working Group 2000

17