COMMUNITY FISHERY CENTRES AND THE TRANSFER OF TECHNOLOGY TO SMALL-SCALE FISHERIES

M . Ben-Yami F i s h e r i e s Department

FAO, Rome

Abstract

In s p i t e of t h e i r r o l e i n supplying most o f t h e f i s h consumed i n develop- i n g c o . m t r i e s , smal l - sca le fishermen cont inue, with few excep t ions , t o l i v e a t t h e margin o f subsist .-nce. Many a t t empts at t h e development of r u r a l , a r t i - s a n a l f i s h e r i e s have been unable t o overcome s o c i o - c u l t u r a l , p o l i t i c a l , econo- mic, and t e c h n o l o g i c a l b a r r i e r s . This paper proposed a s t r a t e g y o f i n t e g r a t e d development i n f i s h i n g communities wi th t h e emphasis 'on t h e improvement,.of t h e w e l l being of t h e communities and t h e i r members r a t h e r than on t h e s h e e r i n c r e a s e i n product ion. Th i s s t r a t e g y , s t a r t i n g wi th p lanning s t a g e , should be implemented w i t h t h e p a r t i c i p a t i o n o f t h e communities involved. Appl ica t ion of t h e concept of groups o f community f i s h e r y c e n t r e s supported by l o c a l / p r o v i n c i a l ex tens ion u n i t s , w i l l enab le s u s t a i c e d t r a n s f e r o f d e s i r a b l e technology and t h e necessa ry commercial and s o c i a l i n s t i t u t i o n s . Each c e n t r e would be a complex o f modules s e l e c t e d t o s u i t l o c a l cond i t ions . It can be adapted t o any p o l i t i c a l , s o c i a l , economic an2 i n s t i t u t i o n a l o rgan iza t ion . It may be shore-based, cons t ruc ted on an " a r t i f i c i a l i s l a n d " , s t a t i o n a r y o r f l o a t l n g , bea r t h e form o f a mobile " t r a c i n g s t a t i o n " , i . e . , a r iver-going o r c o a s t a l module-packed v e s s e l . By having t h e c e n t r e s i n groups , t h e c o s t of t h e t e c h n i c a l s u p p o ~ t i n g e x p e r t i s e p e r f isherman and p e r t o n o f f i s h i s reduced. A c e n t r e can become a component o r , even, a nucleus f o r i n t e g r a t e d r u r a l levelopment. Its modules may comprise cap tu re , l and ing , p rocess ing , t r a n s p o r t i n g , supply and marketing s e r v i c e s . A thorough socio-economic and f i s h e r y s tudy on t h e p rospec t ive s i t e of every c e n t r e i s a cond i t ion f o r i t s r a r i o n a i t e c h n i c a l des ign , s u i t a b l e i n s t i t u t i o n a l s e t -up and s u c c e s s f u l opera t ion .

CONTENTS Page

The P o s i t i o n and Predicament of Small-Scale F i s h e r i e s ....... 937 Obs tac les t o Small-Scale F i s h e r i e s Development .............. 937 Technology f o r Whose Benef i t? ............................... 938 Plans from Above Meet R e a l i t y from Below ................. A . . 938 Deciding on t h e Keed o r D e s i r a b i l i t y of Technology Trans fe r .. 939 Technology Trans fe r i s Not an End I n I t s e l f ................. 939 Eow t o Improve t h e Record: In tegra ted Development i n

F i sh ing Communities ....................................... 940 A Closer Look a t t h e Prepara to ry Planning Phase ............. 941 Community F i she ry Centres a s t h e I n t e g r a t o r o f Fishing

Community Development ..................................... 942 I n t e g r a t e d Approach and Peop le ' s P a r t i c i p a t i o n .............. 943 T i s h e r i e s Technology an2 Extension Uni ts Provide S7~pport

t o Groups o f C T s ......................................... 944 '

CFCs and FTZUs Provide Training f o r Local Community and f o r Future CFCs ............................................... 944

Incorpora t ing New o r E x i s t i n g Extension Serv ices ............ 945 Conclusion .................................................. 945

1. THE POSIIICON 1WI) PREDICAHWP OF SMALL-SCALE PIISHERIES

' The eaarll-sorle f i sher ies of the developing oountriea praduoe over one th i rd of t he food f ieh oonsumd worldwide. I n many developiq oountriee the proportion of food f l eh being landed by emall-ooale f i s h e m n i e mrcrh higher. I n &lition t o being m important aouroe of food ,amall-roale f i ~ h r i e e , beoaum they l abou~ in tene ivs , provide mom opportunitiee f o r employment than the indudrial iced ooplnemial fisheries. Between M and 30 million a r t i d fiehermen, their depbnbmnta, tradere and diatribufors probably depend on 6 1 - w a l e fieherieo for t h e i r livelihood.

Limitations of infrrutrmofure,orJS, gear d toohniques and of f isheries resouroee mean that individual prodwtivity is low a d levetls of waste and epoilage are high. Moat fiehemen eogiaged in onroll-soale firhorieo lead a p r e d o u a exietenoe a t o r below subaiatenoe level. Their plight i 6 of t rn oompormdrd by the rerotoneus of fishing 60% tlementa d t h e i r low sfatus ae oompamd with *how en- i n other eQotorr of the national eoonow.

Becauee of the remotenees of t h e i r ooPm\initiee, laok of orgadeation and low status, governments have tended to favour other motors in t h e i r deolelopmenf e f fo r t s in an attempt t o get optimal returns from generally limited resouroee. The oaneequent laok of opporhnity hae led many small-soile f i u h e ~ n , expooirlly the young and energetio, t o seek alternative work i n o i t iea and towns, depriving the crrtisatml f i shing oomrunitier of the verg people who oould be moat e f f e d i m in a s s i d i n g t h e i r developlsnt md self- mlianoe *

A further complication, whioh i e inoremingly oommon, o o o m when the t radi t ional fisherman must compete i n the a m r b t p l m with madern oomneroirl f iehing enterprieee* In euoh oiroumutanoes the f raditional fimhorman must often d r i ~ t o inorease h i e own produotivity i n order t o retain m rlrea4y prooarious position in the ovarall flsheELer motor.

The FA0 Comitteo on Fiahorier at i t8 Eighfb Sesaion i n 1973 urged tbt FA0 tah the in i t i a t i ve in developing r worldwide exmination of the problems and needs of mall- emlo f isheries , t o review experienoe, md promt@ the in t rd lwt ion of ur improved approroh t o aoris t tho dovelopplent o f thir motor. The following par, the Cor~rittee rei terated its oonoern about the rlow o o o n d o md eaoial progrees in thir motor i n doveloping oountries. The problem war of moh magnitude, it oonoluded, that ray develop- rwnt rrrsietanoe programm ought t o d v e the h i @ d prior i ty t o finding rolutiona f o r improving t h e w fimhorier a d allooatinq the nemmoarg funds f o r the implomantation of eofion pmjeots. The Coaaiftre naoegimed that this m l d require an o m r i l l approaah ombrroing eooial, eoonomio, oultuval d poli t ioal aspeots as well a s tteahnoogied d roient if i o input 8.

2. OBSTACLES TO SMBLL-SCU FSSHERIES DEVELOPMEIJT

Small-eoale fiehennen i n coastal oonmunitiee i n developing oount r iee oaslnot usually develop without out aide aasietenoe. Among other t h i n e , t h e i r remotenees oan res t r io t acoeee t o markets and there is a laok of both investment and working capi tal , ae well as mter i a l e f o r boats and f ishing gear. Inoentive-killing exploitation of the fishermen, ovele~ fiahing i n some areas, and local oultural, eooio-economic an8 poli t ioal p r e e e m s add t o theee problem. Resome limitations aleo aot as a oonstraint t o developlent and t h i s partioular problem oan be further aggravated when the amall-ecale f i sher ies are i n oompeti- t ion with larger, oomeroial fisheries.

At$emp%r by awkride agmoioo, both lzrtionrl end international + t o otnroome these b w k w do no$ u n u l l p yield the desired rseiiltrs. expatriate adviaers and rpeo- ialirtm ham diff ioul ty in understudling and aooepfhg looal oul+wal valuela and mentalities whioh a f f 6 d u&d oontrol the rumponso of the fishing folk t o de t r s lop~~n t arrimtanoe * Joining expatriate development erpertiee with national oolleaguer o r @*oourterpartsW does not rl#;ls eoltre the problem einoe national experbs m ~ y well have

a social and p o l i t i c a l background f a r removed from that of t h e artisanal fisherman. Linguistic- and ethnic gaps mafr a l s o be an' obstacle f o r nat ionals who a r e not of t h e loca l people's t r i b e o r rac ia l baokground.

The influence of t h i s culture1 gap between experts and fishel*-folk i e acoantuafed when, as is usually t h e case, a emall-sale f i s h e r i e s development project is f i r s t formulated i n minis ter ia l h a l l s and then put i n t o operation on the f i sh ing aomtaiDiee, I t i s a plan of outsiders and, as such, of'fen overlooks o r ignores aspects of t h e s i tua t ion which a re very important to t h e f i ah ing communitiee. The fishermen may a leo have hsLd past experience of development e f f o r t e t h a t caused trouble and addit ional work without bringing any tangible resu l t s , I n fac t , these e f f o r t s may even have caused t h e s i tua t ion of the poor t o de te r io ra te , helping only t h e already strong and rich. Understandably, these fisher-folk tend t o be suspicioue and even antagonist ic t o new development plane descending from above. On the other hand, even the most understanding an& energetic developnent agents m a y f ind themselves helpless againat indifference o r h o s t i l i t y of the national o r local p o l i t i c a l powers. The complex of problems involved are beyond the scope of t h i ~ w ? e r and deserve separate treatment.

3. TECHNOLOGY FOR WHOSE: BENEFlC'P?

In the in te res t8 of improving productivity, lnsny attempts have been made over the years t o apply improved technology t o t h e development of a r t i sana l f i she r ies , Despite various methods of approach and not a few good and well executed projects, f a i l u r e has often l e f t i t s monument i n t h e form of m e t i n g machinery. Very often an inherent lack of technological experience among t h e people concerned presents a b a r r i e r t o mechanil;ation. Only ra re ly w i l l a f i r s t generation t ra inee from 8 rural, non-mechanized society acquire the same sense of r e s p o n ~ i b i l i t y , technical know-how and i n t u i t i v e fee l ing f o r machinery as w i l l a pereon born and brought up among the machines and d i sc ip l ines of a modern indus t r i a l society. Yet many developolent projects i n s i s t on giving rura l , not very mechanically-minded people quick and intensive t r a i n i n g t o enable them t o operate and maintain imported technology. The chance of success is very low indeed.

The more conservative approach t o technological evolution recommended here runs against the notion popular with both national administrators and donor agencies tha t development pro j ec t s ehould be cieanly executed and subsequently self-sustaining i n an administrat ively convenient period of two t o f i v e years, e notion often reinforced by a n a t i o n a l i s t i c des i re f o r independence from foreign expertise. Theae in tent ions a r e conmendable i n themselves bu* self-defeating i f se t ae unrea l i s t i ca l ly s h o r t 4 e m goals,

Another oomponent of t h i s problem is the "hard sell ing" of inappropriate technology by manufaoturers and t h e i r agents t o inexperienced and often unqualified representatives of developing f isher ies . Lack of infras t ructure f o r t h e maintenance of t h e new techno- logy and of t r a i n i n g f s o i l i t i e s f o r i ts operators i e still another aspect, while high i n i t i a l and operating costa and laok of eui table oredi t scheme a r e other important faotors. Such th ings have combined raany t imee and i n masy places t o defeat honest attempt8 at application of improved o r advanced technology t o t h e development of mall- ecale f i sher ies .

4. P W S FIEOH ABOVE MEET REALITY FIEOM BELOW

Neither developnent planners nor fishermen on the beach can by themselves be aware of and allow f o r all the various opportunit ies f o r and obafacles t o a successful f i s h i n g oomunity development. It requires close and continual collaboration between outside epec ia l i s t s and people from the commtnit i e s involved. This approach not only benef i t s from both external and looel expertiee but a le0 has the great advantage t h e t the f i s h i n g comnunity recognises t h e development plan as being t h e i r own.

5. DECIDING ON 'IHE NXED OR DESIRABILITY OF TECHNOLOGY TRANSFER

'Attempts t o t r a n s f e r technology without d e q u a t e a t tent ion t o local cu l tu res and conditions have time and again caused aocis l , economic and cu l tu ra l dieruprtions i n small producere' conmunities, among them not a few f i sh ing communities. They have created i n t h e i r wake an atmosphere of eoepticiem, reserve and sometimes outr ight h o s t i l i t y t o developnent . Inappropriate technology has ofien been singled out as t h e main v i l l a i n leading t o a questioning of t h e d e s i r a b i l i t y of technological component i n small- scale f i s h e r i e s developnent , and arguments i n favour of leaving t r a d i t i o n a l technologg untouched. Such arguments, however, presuppose t h a t t h e art isslnal fiehermen f a t a l i s t i c a l - l y accept t h e i r present low productivity and i n a b i l i t y t o provide adequately f o r them- selves and t h e i r f m i l i e e .

I n many areas throughout t h e Third World the small-scale fishermen continue t o m d l e canoes and t o dry f i s h on the beaches while watching the technologically edvanced indus t r i a l f i s h e r i e s take a greater ehare of t h e f i s h resources an8 t h e i r inshore waters become inc readngly polluted by indus t r i a l and urljan effluents. While i n t h e indue t r i a l and urban s e t t i n g most technologg i e considered appropriate, some well-wishing th inkers i n s i s t t h a t ru ra l communities should s tay cu l tu ra l ly "pure" and technologically %impleW . But what prospects does t h i e o f f e r the ar t i sans1 fisherman, except those of ever increae- ing poverty?

Uhat about those areas and comnunities where technology t r a n s f e r is considered indispensable by t h e people themselves f o r breaking the vicious c i r c l e of poverty and misery? Those who walk the beaches and go where the small-scale, a r t i s a n a l , rural fishermen a r e and ask them what they need most w i l l hear again and again t h e wrde : i c e , motor, nylon, b e t t e r boat, t ransport t o w r k e t , Should one t u r n them down, t e l l i n g thorn t o keep t o t h e i r t r ad i t iona l , o r a t best s l i g h t l y improved oltechnologie~ll , o r should one ra ther re-examine the needs i n search of technology and delivery mechanisms t h a t can a s s i s t i n t h e socia l progress of the cornunity and i t s individual members? The first s t e p i n such a re-examination would be t o se t one main objective f o r the development of t h e small-scale f isher ies : improving the l o t of t h e f iehinu f o l k and t h e i r c o r n m i t i e s 1/.

6. TECHbTQLOGY 'RZANSFER IS HOT AN E3JD IN ITSELF

Traditionail teohnology i n i ts exierfing o r improved version, innovative " a l t e r n a t i ~ e ~ ~ o r eimple imported tschnology w, i n many cases, be adequate t o increase production and improve t h e fieherman'la l o t . Such technologies are e a s i e r t o lrbsorb and aauae l e s s socfo- cu l tu ra l ohangee and disruption i n rural f i sh ing communities than more unfamiliar techno- logy. Obviously, t h e t r a n s f e r of modern %onventional~ technology is relevant only when t r a d i t i o n a l o r o ther simple technologies a r e inadequate f o r these ends.

We muet mcognise tha t some s i tua t ions require solut ions t h a t such technologies cannot furnish. For example, i n many areas only fresh, high quality f i s h w i l l br ing a high enougfi price i n the market t o support real and signifioarrt change i n the economic condit ions of the a r t i eana l fiehennan. But in moat places, t o be delivered f resh t o market the f i s h must be i n ice. Fresh, iced f i s h must be to red cold and ca r r i ed t o the market using rapid, ref r igera ted transport . Where ' t ransi t ion from t r a d i t i o n a l l y dr ied o r otherwise cured f i s h t o f resh f i s h would s ignif ioant ly benefit the f i sh ing conmnmity, r e f r ige ra t ion teohnology may be a highly desirable snd desired development input.

A s another example of desirable technological inputs, coneider t h e frequently encount- ered s i tua t ions i n which motors f o r t r ad i t iona l boats may open previously inaccessible f ishing ground0 t o the fishermen or,' where t h e resowoes permit, enable them t o use more e f f i c i e n t f i sh ing methods.

1/ The l imited scope of t h i e paper does not permit the author t o specify the various elements of t h i s objective and t o discuss its complex ramifications.

Ih many cases development agencies and orgertin;ations, whether national or inter- national, ma faced w i t h a problem of judgement t is the locally desired technology appropy$@e or not? The general awareness of t h i s pmblem result s from the growing

inn of the socir+oultural and econo-politioal eff@@ and implications of teohno- P r s s l Q r lo@ . On the other hand, however, care muet be, teken not t o neglect potentially very usefull and appropriate technology solely because previous ill-conoeived and poorly delivered pro jects have failed. Too oft en such fai lures are blamed on a basic incompati- b i l i t y between the t radi t ional society and the technology, rather than on defioienciee in projeot fonmilation aad delivery. Some udevelopersm dis l ike blaming themrrelvcse, nor do ~ ~ J I I w d t o r i sk further fa i lures eo they e i ther sseign only the "safeN, eimple, o r intermediate teohnolopy t o the rrt1sar1al fishemen or, t o 8t.y on still sa fe r ground, prescribe a hardly available %lternativefl teohnolow and take the i r time t o wait f o r i ts emergenae .

The hietory of pro j e d s centered on technology t ransfer t o small-scale fishermen i s not f i l l ed with ~ ~ ~ c e 8 8 8 8 . I n many oases, the teohnologioal aspects of projeots have been made t o work a s long as adequate teohnical assimtance, expertise and leaderehip were provided. When suoh assistan08 was withdrawn on project termination a f t e r a t moet three t o f ive yeare of operation, things f e l l apart. A nmiiber of technically suooessful projeots could probably have survived with continued managerial and financial aeeiduroe, but more oPten than not underlying gaps exiet i n both the technological background and the at t i tudes of looal operators.

The d i f f ioul ty of implanting a ' oultural knack' for maohinery by short-term instmotion has already been discueeed and the wise planner w i l l take into oonaideration that it may take a new generation g~ouing up amongst the new technology to provide l o a d teohnical self-euffioiency. Thus, allowanoe w i l l be made f o r a oontinuing component of external expertise i n any soheme.

7. mW lU IMPROVE afE: RECORD: INTECRA'ED DEilELOPMETJT IN FISHING COMMUNITIES

Well aware that a high proportion of aid plans and davelopaent projeats f o r &isanel f isheries f a i l t o take root and thrive, an aaalysis of the oommon reaeons fo r fa i lure has led t o the elaboration of a oomprehenaive ~trcltegg riming a t integrated development i n fishing oomunities, mainly by the establishment of groups of prodwtion, and semrioe-oriented development centres, Conmnanity Fishery Centres ( in ehort CFC, ae desoribed i n Appendix A) . Eaoh group is supported by its own technology and axfension unit (Fisheries Technologg and Eldendon hit, i n short FTEX as desoribed in Appendix C) .

'Phe individual element6 of +hi8 strategy ace by no meam new, but generally they have not bean applied i n a ooordinated, ayetematio anb long-term fashion. The strategy reoomended here i e not put forward aa a panaoea. The CFC/FTEU conoept represents only one wcr;y t o the development of the small-scale fisheries, 'Inherent i n the preparatorg pbaae of aaoh projeot i a an analytioel study of the conditions i n the prospective projeot osar whioh ahould prevent attempt8 at implementing t h i s solution where it does nat f i t the situation.

Unaer the right oonditions, however, t h i s atrafegy when properly applied by FA0 o r other international development agencies o r direct ly by a government of a developing oountry ehould go a long way t o overcoming the economio, teobnologioal, and socio-cultural oonstraints which are not adequately dealt with i n piecemeal approaches.

The strategy involves three etageu of progressive involvement:

Phaee I: In the f i r s t stage, an experienoed development expert works f o r one o r two months with a national teem t o identify looations and areae f o r the sort of small-scale' f isheries development envisaged here. SuooessFul oonclueion is followed by:

Phase 11, i n which a multi-disciplinary preparatory planning team gaes t o the identi- f ied s i tes . I n close coopemtion with the local cownunities and the authori t ies concerned, the team devisee a development plan end work progranme, including design of the Community Fishery Centres, programming of the required technological support and the ins t i tu t iona l arrangement 8.

Phase 111 involves a a t e p b p s t e p implementation of that work plan through the focue of a local group of Community Fishery Centres baoked up fo r a very long period of time by a single Fisheries Technologp curd Extension Unit. The team of FDU spec ia l i s t s provide on- the- job training, guidance and general support t o the local Corrmunity Mshery Centres operators.

The main innovation l i e e i n the second phme which i e meant t o ensure tha t the concept of the project f i t s the local production and market conditions and meets the needs and aspirations of the comunity. An in-depth study carried out i n the area and the involve- ment of a l l concerned in discussing and planning the CFCs, t h e i r deeign,institutional character, the form of the investment, the credit schemes, the cash flow, and the marketing systems t o be applied, should provide the best possible conditions fo r the formulation of a rational project bearing a good promise of general support and acceptance and hence viabili ty. I f the resu l t s of t h i s study are negative, the project idea must be abandoned.

While the s ty le of approach being reconmended contains a suggested rat rategy, it does not i n s i s t on inflexible, ready-made solutions. A s part of the technical support from FA0 Headquarters, a catalogue of various physical componentrs and f a c i l i t i e s such ae motor repair shop, net loft , processing shed, etc., es well a s organizetional, ins t i tu t iona l and comercial fobnats from which a first-approximation selection can be made t o su i t local conditions are being produced.

By offering a treasury of non-exclueive alternat ives, the preparatory planning task should be made oonsiderably easier, b& it mud be emphasis& that, while the suggested procedure s t resses possible methods fo r the required investigation, andyeis , participrrt- ory planning and long-term suppod, if doe8 not speoify the resul t ing project design, nor the aesociated inet i tut ional and eocial fmmwork. The solution met be appropriate t o the environment of the identified problem. For example, where harvesting of mom distant f ishing grounds is determined t o require motorieation o r improved vessels, there would be a atrang element of teohnology t ransfer backed up bg technical expertise. I f , on the other hand, marketing i s the limiting faotor, the CFC mqy take a more social or ins t i tu t iona l direction, assuming f o r exeunple the form of a f i sh t enninal where fishermen land t h e i r catch f o r processing, local marketing, eJtd fur ther dispatch t o dietant markets. Another CFC may not deal with f i sh at all, but act , f o r example, a s a supplier of boats, gear and engine maintenance services.

8. A CLOSER LOOK AT alE PREPARATORY PLANNING PHASE

While the CFC/F~IEU concept represents a gemeralised approach,each individual case requiree a separate st* and analysis of l6cal conditions. The need fo r thorough and sometimes prolongdl study and analJrsie i s amplified by the cultural and l inguis t ic gap between the local population and the expatriate and, i n many cases, the national experts undertaking the etwly.

Nany mistakes - and even project fa i lures - could have been avoided i f greater care and mare time had been invested in bxploring the eocio-cultural climate and the pol i t ica l web of the comnunity a t o r before the planning stage, but of+ten t h i s v i t a l preliminary work hae been skipped t 6 mve time or funds. Those not canscious of the many p i t f a l l s fomd a t the comnunity level, o r Who do not accept t h e i r importance, may be tempted t o just "go through the motionew of pre-planning with predictably dieastrous reeult s.

Ia addition t o a study of the situation, the pnpurstory p h ~ e of every CFC type projeot rhould also include the planning of a35 jm3ect upeofe and the design of needed cotnpmmnt s 4

This preparatory phase, which oan la& up t o a year, ehould be carried out by a t e a of experts (national and expatriate as required) i n such specialties ae, for example, capfme, marketing, engineering, and S00iol@gy. The tw'8 essential task is to gain the cox~fideme of the coamwsitiea and indiddu1I.s bvoived so a s t o draw them gradually into aof4ve cooperation md partioipatidn i n t h e study Md planning for t h e i r own development p r o m e . I f t h i s is carried out well. %kg real ly valuable knowledge and needs of the community w i l l be an integral part of fhe m ~ u l t a n t development programme. Aa a result the local cornunities are much more l ike ly t o view the whole operation a s being a t least pulfly t he i r own rather than juat a ~ ~ t h e r alien achemg devised in dietant officee.

The ac t iv i t i e s undertaken w i t h i # the Pram of a CFC must be i n response t o pr ior i t ies decided upon by the f ishing aoamnmi%$ itself in cmsultation with project specialists. They should be a t a technical level Wnnly within the graep of local people trained during the project. It i e r n t i c i p ~ t e d that r portion of the early work i n each CFC w i l l be assisting the fisheman's cammunity %@ evolve 8 local wsgeinent spparatue where t h i s does not already exist . Since the CFCe would cater ale0 t o locally parceived non-fieherg related oomunity neede, they should provide new options for changee in the l i f e of the fishing folk by supplying the developnent ingredients which the comnunitiee do not themselves poesess.

9. COMMUNITY F'IgIERY CEN'I'RES AS 'ME INTEORATOR OF FISHING COMldUNIllI DEVELOPMENT

A Comaunity Fishery Centre (see exmded CFC diagram in Appendix A) provides fo r the supply and maintenance of equipment and materials, including the supply of fuel, water md ice, and for the handling, processing, storing and dispatch of the fishermen's catches ae required. In this respect, almoet every emall fishing harbour i n a developed fishing country i s a CFC whioh has gradually gronn over s l ~ y years, often centuries. Shortening t h i s process i n developing countries i n o d e r t o improve the lo t of the fishing folk calls for aotive government planning, as i n the identification and preparatory phasee disouesed above, followed up by support f o r the effective establishment and operation of the Community Fishery Centres.

The Centre would not euddenly meterirliae i n the fishing c o m i t y but would be bui l t up physiorlly and organisationally one module rf a t i m e rocording t o the needs uui oapabi- lit i e r f o r local construction and operation in ulsooiat ion with expert technical assistanoe .

Eventually, erch Cdntre would be a oomplex of e ta t ionuy o r mobile eervice modules providing r ran* of f a c i l i t i e s and equipment f o r uas by and tailored t o the epeoific needs of the fishing ccmnunities concerned. It might s t a r t , f o r example, with a rpere pr r t s and firhing gear store and be expandsd t o inalube, sw, ice-making equipment, refrigeration and processing equipment ; a l l on an apprOprirte scale. Within the framework of government policies md p r io r i t i e s and depending on local oulturs, custcme and existing conditions, the CFC would be operated e i ther aa a Irisherior Ikpcrrtmentls ssrvioe oentre, as an independ- mt cooperative o r 5s part of a provinciil o r national cooperative society, or other type of fishermen's organieation, a s a cornunity o r government owned coranercial enterprise, or even aa ur asrembly of' individually owned produation and aemrice shops, plants and work- shops, Thue, the CFC group concept allawe the existing support etructure t o be respected while scosptable al ternat ives can evolve, with i n i t i a l finanoe provided from eources whioh look f o r social improvement e rather than only for profi ts on investment.

In agrement with government policy, every effort should be made t o involve and u t i l i ze the exis t ing cornunity etrucf ure - that i r t o say, government repreaentat'lves, local organications and pol i t ica l parties, t r i b a l chiefs and heads of families. Any attempt by development agents t o impose a new power structure, even i f non-political or non-tribal, without strong govenunent p& population support i s l ikely t o antagonize but not overcome

the resistance of powerful co~munity seotore end so jeopardioe the success of the project. The t radi t ional syetems with middlemen, money-lenders and f i sh mammies are not necessarily al l -vi l la inow, and should not be discarded lightly. Some righteous, but bureaucratic substitutes designed in office6 and universit ies may not take root a t a l l or, i f insietent ly forced on the people, may wind up being to t a l ly rejected.

10. INTEGRATED APPROACH AND PEOPLE'S PARllCIPATION

The assembly of well-run and mintained technological modules aimed a t the improvement of f i sh production, processing, and marketing capacity of the carnupity repreaente only one aspect of the CFC. I t s other aepect w i l l show when it develops into a centre around which evolve8 a prooess of improvement of the quality of l i f e , atandard of l iving, and self- reliance of the co~munity. Thus, a Cornunity Fieheriee Cent- should include uni ts o r modules which are, not neoesearily direct ly aimed at production of fish. Thie may be supplying the comnunity with electQc power, clean water, a eanitary instal la t ion, o r first-aid eervice. It could be a coffee house where the fishermen meet, a l i t t l e s tore where tribesmen can buy anything from a fiehing net to a traneietor radio, bioycle, food and clothing.

The more general services a CFC can provide, the greater w i l l be its success i n a t t rac t ing fishermen t o use i ts f ac i l i t i e s . Wily important i e the problem of persuading local government of f ic ia l s , including fishery officers and regional administrators, of the benefit that establishment of such integrated centres could bring t o the people involved and t o the country a s a whole. It can be pointed out that the f i r s t group of C F C s should be considered a6 merely a pioneer pilot project in i t s province o r region which would, i f sucoesaful, radiate i ts influence over more and more communities.

If fu l ly integrated development i s t o be achieved, inputs representing a l l the varied needs of the oarnuunities ooncerned must be provided through concerted ac t iv i t i ee by a11 international, national, and local social development agents interested in the project area. Furthermore, the focus on the comnunity a8 a whole through the integrated approach also provides en opportunity t o establish o r atrangthen appropriate forms of fishermen's and other participatory organizatione. An integral part of t h i s ac t iv i ty w i l l be t o provide t raining in the menrgemerf and operat ion of such organil;atione.

Comunity Fishery Centres w i l l aleo create new opportunities f o r the integration of women and fo r increasing the role they play in t h e i r communities. In short, a Comunity Fishery Centre should become the nuclew for integrated rural development (IRD) where IRD has not yet been etarted o r oan be m important element in an on-going IRD prooers.

Planning of developmemt programnes i n rurcil environments must take account of the inter-dependenoe and linkage~s which exis t between, sw, fishermen and farmers l iv ing i n the same oomnunity and which include, possibly, religioue, t r i b a l and economic links; i n t h i s respect it ehould be noted that i n many cams, part-time' fishermen are also part-time farmers. Back and forward linkages within the whole fishery eector and between the fishery sector aud other seotore md indead the met of the national eoonomy met also be identified and taken into account.

Fieheriee and farming have a number of points i n ootmnon; both are food producing induetries with products t o be harvested, e t o w end transported - sometimes to identioal markets. Both industries involve the operation and maintenance of machinery, the supply of fuel and the t raining of operators and meohanics* In practical terms, i r r igat ion pumps, t rac tors and truoke on the one hand and outboad motors, diesel engines, generators and ice plants on the other a l l require the establishment of an engineering service-repair f ac i l i t y whioh might be ehared by the agricultural aad f ishing seotore.

?I, BIfiRERIES TECHNOLOOY AND EX'DIZWIO?J UNITS PROVIDE SUPWRT TO CROUPS OF CFCe

CbPlmunity Fishery Centres are not a new idea, and preeently exiet i n some developing mWbHeB with varying degrees of auoceee. Not normally found, however, i e our recornended l o n p t c m support t o the CFCe thmugh Pisheriee Technology and Extenaion Units (P'TEUe, eee Appendix C) continued unt i l the local people are themselvee able t o perpetuate the edvanoee pinod.

A Pirlreries Technology and Extenaion U n i t is a toan of experienoed epecialiste, well rwlppcrd wifh tools a d means of transportation, whose duties sre t o aeeiat i n the estab- l i a t m ~ ~ t md operation of the Comunity Fishery Centme. They are attached t o a group of €PC@ not too d i stunt from each other, rro that oaoh centre oaa be visited by the FTEU exprrtr, rqr, onoe or twioe a week. Their dut ier inolude on-thcjob t raining of the looal oporrto* of t he new tectnrology and f he adainiefratiw cnb mrnrgvRIcmt s t a f f of the new coaauni+y o P ~ i t a t i o n a , 6.g. oooperrfivas and other CP2 enterprises. Further, the FTEU workerr w i l l eupervies the aeleotion, ina ta l la t ion, t echnioal o p r a t ion and mintearnee of w h h e r y , md the t imely supply of qmres, fuel and other v i t a l 8upplies for the effioient oprcrtion of tho CFCa. The F'LEU i e considered an eeeential component of the approach besaribed i n t h i r paper, inrtnunenta$ i n the appropriate delivery of the new technology and orgurication structures desired by the oomunicty and, f o r many years t o oom, part up4 paroel of the integrated development programme in the CFGgroup project area.

Analysis of paat experience supporte the indirpensability of FlWs i n the oontext of integrated developnent i n rural f i rhing oomnunitiw and the eetabliehment of f i shem centnr . Long-term baok-up by expatriate and non-locrl nati o n d expert8 i e necessrry before outside teohnical support can be withdrawn. The govemrnente and the finrnoing rganoiee involved muat recognice that t h i r kind of mpport is part and paroel of any ~p~/pTnr proJect and a oondition f o r i ts viabili ty. The n e m s ~ ~ a r y expertise doer not, however, wms oheaply, therefore, care m u 8 t bs t &en t o make ruoh technioal aesistmoe vow ooet-effeotive. S01ution0 mu8t be worked out f o r each emparate pro jeot and appropriately budgeted. In general, however, the CFC/FTEU o m a p t enables the oost per fiahing oomnunity t o be kept at a reasonable l e m l by having the FlRl support a nunber of CFCe and by the use of well-trained aseooiate expertr, volunteers, nation81 teohnicirnr and extension workere.

'fhe burden of maintaining sustained etrong support at provincial level ehould be weighed againsf the prediotable finanoial loeeea and l ikely r o c i d and pol i t ica l troubles when,- a resul t of inruff ioient ly eupport ed project s, expensive equipnent is ahdonad , loans ore unpaid, jbbe are los t , and people are dieappointed a d pushed bmk into t h e i r old, insufficient livelihoode.

12. CRs and m e PROVIDE TRAXNRSO FOR LOCAL COMMUNITY AHD mR FUTURE CFCs

T b CPCe and the FZEU would nerve as oentms f o r t rdining people on the job t o oplnrte whatewr w r v i m e the oomnunifg omtree are oompoeed of, 8 m of these trainear q oow from mom dir tant villager, not neomrssllily thome where the CPCe haw been ratablished, ro that they rimy go gaok t o t h e i r ooa~nmities and, with the help of the govemmsnt and other agencies o r by tkmwlves , &art developing t h e i r oommmities in a rimilar way. The t ra in ing would involh several types of ro t iv i t iee ruoh ro, e.8, orcrrrh oouraes, meminrrrr , demonat rations and l e o t m ~ . Moet training, houevor, w i l l omoent rate on d h o - job apprent ioeehip. Training w i l l follow two main parallel ooursr r r

( 1) technical operation and maintenatme of t eolmology and know-how in f i sh handling, prooerring, md i n fishing gear urd larfhods; and

(2) admlnietration and mgement of CFC operation and i t s different modulas.

13. INCORPORATING NEU OR EXISTING EXTENSION SERVICES

Zhe application of a 'beach-head' str'ategg i n i t i a l l y r e s t r i c t i n g geographical coverage t o a epecif ic a rea within a ~ o u n t r y w i l l b r ing about concentration of development inputs and a l s o provide a remedy t o a problem frequently encountered with f i eher ies exteneion services. I n msny developing countries, extension aervicee, i f any, are top heavy and ine f fec t ive at t h e f i e l d level , where extension workers are scarce and frequently dispersed i n remote locat ions over wide geographioal areas; often they are poorly equipped, badly supported and unable t o carry out extension work i n the rea l eenae of the t em. I n too many cases extension workers are being used ae mere co l l ec to rs of s t a t i s t i c a l da ta and revenue and as enforcers of l eg i s la t ion . The operation of and support t o Cormunity Fishery Centres, through well-equipped f i s h e r i e s Technology and W e n s i o n Unite cen t ra l ly located amidst several CFCs, w i l l preeent an a l t e rna t ive and more e f fec t ive way of deploying extension workere and providing expertly supervised on-the-job t r a i n i n g of extension personnel i n small, manageable sized groups.

14. CONCLUSION

The concept described i n t h i s paper has already been adopted by a nunber of govein- ments i n Africa and several projects a re i n varioue stages of planning and implementation. It w i l l take several yeare, however, before they can be evaluated and before lessons can be drawn from t h e experience which w i l l accumulate.

The mope of t h i s paper prevented t h e author from discuesing i n depth many of t h e numeroue socia l , cu l tu ra l , p o l i t i c a l , economic and technological f a c e t s of t h e outl ined ooncept and of the environment in to which it i s being introduced. It should be regarded as an attempt t o out l ine a w q t o smsll-scale f i eher ies developnent that may bridge the eoc i~ teohnolog ioa1 gap between *he desirable and the aooeptable teohnology. The CFC/FTEU ooncept should be considered ra the r ae an approach than as a ready-made solution t o be applied only where su i t ab le and its suoceae w i l l depend on t h e f l e x i b i l i t y of mind and the se lect ion and adaptation of ideas and forms during t h e prooese of study, planning and implementation, and above a l l on the motivation, comon sense and dedication of all concerned.

I n the c los ing passage of h ie address t o t h e 13th Session of the FA0 Cornittee on Fieheriee, Dr. E. Saouma, Director-Oeneral of FAO, said, while re fe r r ing t o the new regime of extended eoonomic zones i n the sea:

"The c h a l l e n e we face is t o provide a s e t t i n g f o r eromething b e t t e r than a new colonialiem of t h e sea. New f i s h e r i e s can be b u i l t ae indigenous indust r ies on t r a d i t i o n a l bases, prUrticularly the emall- scale o r artisanal f isher iee . They can grow withovt sooial die- ruption, without pollution, without most of t h e painful aide e f f e c t s aesooiated with over-zealow indus t r i a l developmetit. The s k i l l s a r e available, the technology i s within reach; the opportunity needs only t o be grasped. Let us do a0 now."

Appendix A

C O W I T f FTSiERY CENTRES (GI%) (check list f o r eeleation of components)

Function F a c i l i t i e s

Mechanical workshop Elec t r ica l workshop

Maintenance of technology Spare paFte s tore Boat repa i r yard Net loft

Netloft Construct ion of equipnent- Boatyard

and buildings f Conetruat ion unit

-E~ing Landing s e m i ce e beaahing winchee fixed

[f loat ing

Fish 1 anding/handling ehed Fish scales Running water

Fish handling Fieh store _ ~ % : g ~ b d Ice plant cold d o r e Ice s tore Small containers (box,basket ) s tore

Drying in s t a l l a t i on Smoke k i lns and houses out t ing;/portioning/packing room

Msh proceasing Sal t ing f a c i l i t y and del icacies plant

Cannery F'reeeer Reduotion and si lage f a c i l i t y Sfore f o r processed produot

Food s tore Gear s tore h e 1 e ta t ion

Suppliee Water eouroe/supply s ta t ion Spare parfe s tore Ioe store/rupply a ta t ion

ehed or ha l l 4 rucks/vane

Marketing ~~~/owned/rented/rcllated selling/

Fi ehermen etoree of fee/ ter houae club/meet ing plade

Cornunity servioea Ffret-aid, phafnaoy, medioal uervioe Power rupply t o v i l l a@ Voort ional f raining i n rohool Othere

-t raotor-towed vehicles

-movable oont d n e r s

Maine t o national/mgional network L o c a l ~ r e e l e c t r i o

vending f a o i l i t i r e within and ..carrier boat8 outside tho CFO a l t o

Power Local solar-heat turbine -Local wind turbine .-Local fuel-driven generatore

Appendix B

POSSIBLE OWNERSHIP PATTEmS IN COMMUNITY FTSHERY C E N m S

Private enterprise Single, privately- Sets of modules A l l CFC services owned modules privat ely-owned company-owned

Trading s t a t ion

Sets of cooperative- A l l CFC services CFC run by a large owned modules one cooperative cooperative eooiety

outside the commity

C K ass independent CFC a s a branch CFC temporarily etatbormed of d a t e company administered ent erpriee by government

service

Comaunity enterprise Single modules owned by the cornunity I Sets of modules A l l CM: eemrioeu

owned by the commurity owned community

Appendix C

Fl SHERY TECHNOLOGY AND MTEN SI.ON UNIT - A CONCENTRATED, CONTINUOUS FORCE B W N D THX INTEGRATED DEVEZOFMENT I N THF: PROJECT AREA

EXTENSION UNIT *

Establiehment Maint enttnce Operat ion

CM: CFC C F C etc.

OTHEIi INSI'I ?UTES

P r o d u c t i o n I

Technical support Design and extension t o Demonst rat ion- fishermen Introduction -

Maintenance -

. FA0

I S h o r e s e r v i c e s f

-

t Establishment of CFC --~msi" component s Construction

.. . -

' I

Navigation f i s h finding

[:ale gear conet ruct ion

methods and operations -Fishing

engine and other machinery

-Fish handling

NAI'IONAL FISHERIES TECHNOLOGY SERVICES

-Teohnical eupport and Maintenance and repaire on-the-job t r a i n i n g f o r Supply s e w i c e s t h e CFC technology Construct ion groups

Fish landing services Fish handling and' processing un i t s and f a c i l i t i e s Transport

t Managerial and institutional support Marketing and t r a i n i n g f o r the operation of Suppliee CFC and it 6 components Credits and cash flow

Co-operat ion Other business

t Preparation anddissemination of information and of extension and t r a i n i n g material

L Cornunity matters