In this article on the new protocol to the Sustainable Fisheries Partnership Agreement between the EU and Guinea-Bissau, the author reviews the key points of the agreement from the point of view of local small-scale fisheries and relays their demands: transparency, access to fish for women fish processors, and training. The author also details a sustainability aspect: although the protocol does not allow European fleets to fish for small pelagics because they are overexploited, at least 4 European vessels have reportedly reflagged to Guinea-Bissau and are fishing for these species in the region, jeopardising the region's food security and competing with small-scale fisheries.
NOTE: All the photos in this article are by photojournalist Carmen Abd Ali. You can see a selection of her photos of the Guinea Bissau artisanal fisheries value chain here.
Reading time: 14 minutes
In May 2024, the European Union concluded the renewal of a five-year Sustainable Fisheries Partnership Agreement (SFPA) protocol with Guinea Bissau. The agreement was signed in September and is being implemented on a provisional basis pending approval by the European Parliament.
Along with the bilateral EU-Mauritania agreement, the Guinea Bissau SFPA is one of the few multi-species agreements that allows European fleets to fish not only tuna, but also cephalopods, shrimps, and demersal species. In return Guinea-Bissau, will receive €17 million annually, including €4.5 million for sectoral support.
Guinea-Bissau, which experienced two failed coups during the last protocol period of the fisheries agreement, is one of the poorest, most unstable, and least developed countries in the region. The economy is mainly based on the primary sector, and fishing accounts for 3% of the GDP of the 2 million-inhabitants country.
The ex-post evaluation of the agreement indicated the government dependence on the fisheries sector for its revenue, the sector accounting for “around 15% of the country's total budget revenue, and almost 50% of its non-tax budget revenue.” The fisheries agreement with the EU is a major contributor, accounting for 60% of national budget revenue from the fisheries sector. In fact, if we also take into account the contributions made by shipowners for their fishing licences, the EU's contribution is estimated at €100 million over 5 years.
In this article, we highlight the key points concerning access and sectoral support for the local small-scale fisheries value chain.
Access
Guinea-Bissau's fishing zone includes a zone shared with Senegal. According to the evaluation commissioned by the European Commission, an average of 128 industrial fishing vessels (2022 figures) fish in the country's waters and access the fishing zone under agreement regimes or under regimes provided for in national regulations. The majority of these vessels fly the Chinese flag (under agreement or charter).
In Guinea-Bissau, artisanal pirogues usually do not exceed 18 meters and only 32% are motorised. Photo: Salif Mbou is the chief carpenter in Bissau, by Carmen Abd-Ali
In addition, under the bilateral agreement with Senegal, a maximum of 300 Senegalese small-scale pirogues can fish in the waters, competing with the less developed local small-scale fisheries. According to a West African Economic and Monetary Union (WAEMU) report, only 32% of Guinea Bissau's pirogues are motorised.
The opacity of fisheries management in Guinea-Bissau makes it very difficult to know the actual total fishing effort.
A) JOINT VENTURES COMPETE WITH THE SMALL-SCALE FISHERIES SECTOR
Under SFPAs, the EU encourages the establishment of joint fishing ventures between European and local companies (see for example art. 12.1 of the protocol with Guinea-Bissau). As far as we know, in Senegal, joint fishing ventures with European companies operate locally reflagged vessels and benefit, through bilateral fisheries agreements between Senegal and other countries of the region, from extended access to the waters of the Gambia, Guinea-Bissau and Liberia, among others. These vessels, operating outside the SFPA framework and under Senegalese regulations, do not always comply with the rules of the countries where they fish, as we previously denounced in the case of trawlers belonging to a Spanish company.
The absence of a clear framework for these joint ventures, the failings of West African coastal states in terms of law enforcement and their lack of capacity for monitoring their waters, cannot guarantee sustainable fishing by these reflagged vessels. In addition, the region's fishing communities are complaining that they are being pitted against coastal trawlers operating under these joint ventures, as they target the same fish resources as artisanal fishers and often make incursions into areas reserved to small-scale fisheries.
B) A ZERO ACCESS TO SMALL PELAGICS?
Scientists have been warning for years about the overexploitation of small pelagic stocks in the region. From round and flat sardinella to ethmalose, more and more species are considered overexploited. Following the conclusions of the latest joint scientific committee between the EU and Guinea-Bissau on the state of stocks, access to small pelagics for European fleets has been set at zero.
During the presentation of the SFPA to the European Parliament in September, Swedish MEP Isabella Lövin congratulated the Commission on this zero access, but highlighted the hypocrisy of European countries, as some European vessels have reflagged in Guinea-Bissau to continue fishing small pelagics: “We have the exclusivity clause in these SFPAs, but still have not dealt with the fact that some European [vessels] are reflagging and this is incredibly worrying. The Commission mentioned food security, but these fishing vessels are not monitored and most of them export [their products] to the EU.”
The Swedish MEP quoted an article in the Financial Times: following changes in EU control regulations prohibiting EU nationals from having vessels flagged in countries listed as non-cooperating in the fight against IUU fishing, 4 pelagic trawlers of Lithuanian origin flagged in Cameroon allegedly reflagged in Guinea-Bissau. According to local sources, these vessels are also fishing in Mauritania, where access to small pelagics under the SFPA is also restricted for EU fleets for the same sustainability reasons.
The journalists, in collaboration with the NGO Oceana, revealed that more than 39 vessels flagged in Gambia, Mauritania, Senegal, and Guinea-Bissau had European beneficial owners. Some have a history of IUU fishing, including a vessel of Italian origin, the TWENTY, for which CFFA previously lodged a complaint before the Commission. Nothing was done. Unsurprisingly, the Commission's response to Lövin's question was disappointing, pointing out that there was nothing it could do, as the above-mentioned 4 pelagic trawlers are flying the flag of another country.
“Under the EU-Guinea-Bissau SFPA, European vessels have a zero access to small pelagics; however, some of these vessels have been reflagging to circumvent this restriction and continue to export their products to the EU.””
Nevertheless, we beg to differ from the Commission's position: under article 39 of the EU regulation to eliminate IUU fishing, the Commission has an obligation to ensure that member countries effectively sanction their nationals involved in IUU fishing operations. We agree with the recommendations of MEP Lövin, who called on the Commission to “take a closer look at the reflagging practice of some EU nationals” and to put in place a “follow-up system and put more pressure on the Member States to control” their nationals.
C) MANAGEMENT OF SHARED STOCKS: A REGIONAL EMERGENCY YET AGAIN
Beyond reflagging issues and the debate on access for European fleets, the question of overexploitation of small pelagic remains an urgent problem at regional level. The increased production of fishmeal, which is processed mostly from small pelagic species, either on land in fishmeal plants or directly on factory ships, is one of the main factors contributing to the overexploitation of these stocks in the region. The situation is exacerbated by the effects of climate change: these stocks – essential to the food security of local populations – are increasingly driven northwards.
In Guinea-Bissau alone, a local source warned a few weeks ago of a new fishmeal production unit in the north of the country. Others mentioned two huge factory ships. In Senegal, exports sky-rocketed in 2022, despite opposition from local communities. There is a lack of transparency about who supplies these fishmeal plants and who are their beneficial owners. What is clear, however, is that large quantities are exported directly to Europe in the reduction industry (Spain, Denmark, France), or indirectly through imports of aquaculture products (from Norway, Turkey) fed with fishmeal and fish oil.
While thousands of tonnes of fish are processed every day into fish feed, the fish is no longer reaching the plates of local consumers. In Guinea-Bissau, moreover, artisanal catches are not enough to supply the local market. Women fish processors say they are unable to access the resource because of competition with the processing factories and the lack of landing facilities.
We denounce the duplicity of the EU, which insists that its fisheries agreements are sustainable and support food security in the region: on the one hand, it claims not to allow its fleets to access small pelagics, but on the other, it authorises imports of products derived from small pelagics. Admittedly, this happens because the processes are regulated by different policies, but a little more coherence would be welcome.
On their side, small-scale fishing communities suggest recommendations to solve the food crisis threatening the region: they call for a joint management of small pelagics, the reservation of these species for small-scale fisheries that fish for human consumption, and more investment in the human consumption sector. The EU should also encourage these measures through its agreements.
2. Sectoral support
As part of the annual €17 million, the new protocol includes €4.5 million for sectoral support, which will be devoted to “promoting sustainable fisheries management in Guinea-Bissau, control and surveillance capacities and support for local fishing communities.”
For the first time in an SFPA, the preamble to the Guinea-Bissau-EU protocol quotes the Voluntary Guidelines for securing Sustainable Small-scale Fisheries. These guidelines aim to protect small-scale fisheries, taking into account their contribution to food security and poverty reduction. Their inclusion in the protocol text shows the determination of both parties to make this sector a priority. In this country, which suffers greatly from malnutrition, small-scale fisheries make a major contribution to food security, with fish being the main source of protein available at an affordable price (16-18kg/person/year).
Ice continues to be essential for preserving the fish. Women asked for several cold storage-rooms to be repaired under sectoral support, but only 2 were. Photo: Filipe Soares is the owner of the ice plant in Bissau, by Carmen Abd-Ali.
Figures for catches in the sector vary according to source, but it is important to note that a large proportion (up to 2 thirds) of catches are exported to other countries in the region. The main problems facing the sector are the lack of infrastructure for landing, preserving, and processing fish products, and the failure of the supply system, which makes it difficult to access fish throughout the territory (the archipelagos and the mainland).
A) FUNDS MANAGEMENT TRANSPARENCY AND PARTICIPATION OF BENEFICIARIES
“In Guinea-Bissau, political instability makes it difficult to verify the use of funds”, explains Antónia Adama Djaló, president of the National Network of Small-scale Fisheries Women in Guinea-Bissau (RENAMUP-GB). In this country, where corruption is widespread – and obviously also in the fisheries sector – “when a new government comes to power, it accuses the previous one of embezzlement, but, in reality, few sanctions are imposed.” For Ms Djaló, as for other representatives of local small-scale fisheries, the use of funds for the benefit of the local fisheries sector remains an unclear question.
Last year, the government reportedly organised a national conference on fisheries, inviting all stakeholders. The EU had the opportunity there to present some points regarding the SPFA and sectoral support, and seemed satisfied with the value of the exercise. However, opinions on the results of this conference vary. The communities, for their part, report strong tensions with the government because of the questions they asked. They regretted having to go through their government to put forward their needs, and would like to be consulted directly by the EU.
B) ACCES TO RAW MATERIALS FOR WOMEN FISH PROCESSORS AND CATERING INFRASTRUCTURES NEEDS
Although Guinea Bissau's waters are rich in fish, the local population benefits very little from this. Almost all the catches in the fishing zone are landed outside the country, whether by industrial trawlers landing in Dakar and exporting to foreign markets, or by Senegalese or Guinean pirogues landing in their respective countries.
According to Ms Djaló “If European companies want to restore their image with local populations, it would be better for them to land fish” as provided for in the agreement as fees in kind, rather than paying a financial compensation. “Local communities don't see any of these financial compensations,” adds Papa Cá, president of a cooperative of fisher associations in Biombo, a region in western Guinea-Bissau.
“If European fishing companies want to restore their image with local population, they should land fish that are fit for human consumption.””
Adama Djaló and Ama Camara, another women fish processor, denounce that the majority of landings for the benefit of the local population are deceiving: “Most of them are not fit for human consumption” and are not species consumed by Bissau-Guineans. In 2022, a landing of fish for local consumption was so unfit for human consumption that it was reportedly sent to Senegal to supply fishmeal factories.
Undeniably, the lack of infrastructure to process the fish is the main challenge for these women: landing sites, cold rooms to preserve the fish or ice factories. “We expressed our needs to an EU delegation.” Subsequently, “the administration repaired two cold rooms, and then radio silence.”
C) EXPORTING FISH PRODUCTS TO THE EU
The prospective evaluation explains that the “fishing potential of the fishing zone exceeds the needs of the domestic market” and points to the importance for Guinea-Bissau of being able to export its products “in a structured and controlled manner.” Guinea-Bissau is still unable to export its fish products to the EU as it did not receive authorisation. According to the evaluation, the country is unable to comply with EU sanitary standards.
To strengthen controls on the safety of fish products, the EU and Guinea-Bissau have been announcing for more than a decade the setting up of a national laboratory for sanitary control with funds from sectoral support. Local small-scale fisheries communities doubt that this laboratory will ever see the light of the day due to a lack of qualified staff and working conditions that are not sufficiently attractive for nationals which possess the appropriate training.
D) TRAINING: A NECESSARY CONDITION TO THE DEVELOPMENT OF THE LOCAL FISHERIES SECTOR
In this respect, training needs are apparent at all levels of the small-scale fisheries value chain. For example, in the area of sanitary control, women fish processors are grateful for a training they received through the African Confederation of Professional Organisations of Artisanal Fisheries (CAOPA). In Guinea-Bissau, women smoke, salt, and dry fish, and were trained in hygiene, handling, and packaging. This type of training, easily implemented, improves the working and living conditions of women in the sector and enables them to meet and organise themselves better so that they can take part in the decision-making processes that affect them.
In another example, artisanal fishers report being arrested because they operate in Marine Protected Areas (MPAs). As these MPAs lack markings, fishers are unable to identify when they cross the boundaries. This has prompted their request for training in the use of geolocation systems at sea. In addition, the fishers express a desire to expand and access to waters further away from the coast. As mentioned earlier, only a third of Guinea-Bissau's pirogues are motorised. Training in safety at sea, particularly for pirogue captains, coupled with support measures, would improve the fishers' working conditions on board and prevent a large number of accidents at sea.
Trainings are essential to improving living and working conditions for both fishers – through training in the use of geolocation systems at sea – and women fish processors – through training in hygiene, handling and packaging. Photo: Women fish processor drying fish in the sun, by Carmen Abd Ali.
Finally, the fishing communities of Guinea-Bissau, while acknowledging that “everyone prefers to work on board European vessels”, complain that they are not treated under the same conditions as other ACP seafarers, particularly compared to Senegalese fishers. Shipowners often mention the lack of qualifications of Bissau-Guinean fishers, and the fishers complain of corruption on the part of recruitment agents in order to obtain a place on board a European vessel. In this regard, we welcome the development of a new social clause to be included in fisheries agreements, which addresses these issues. We believe it is also important to focus on the training of the crew, and to link the onboarding of fishers to this training. The EU should also use sectoral support funds to support this kind of training.
Conclusion
For the first time in an EU SFPA, the new protocol to the fisheries partnership agreement between the EU and Guinea-Bissau refers to the Voluntary Guidelines for securing Sustainable Small-Scale Fisheries (SSF Guidelines). CFFA and its partners can only welcome this, as this year marks the 10th anniversary the SSF Guidelines. It reaffirms the willingness of the EU and Guinea-Bissau to support the local fisheries sector in this West African country, which is essentially composed of small-scale fisheries.
However, for this support to be effective on the ground, the needs of small-scale fisheries communities must be listened to. Their main request is to be able to participate in the identification of priorities for the use of sectoral support funds. Women in particular express their need for access to raw materials and training to develop a sector that is still very informal and where working conditions are precarious. For the future, small-scale fisheries communities would like to participate in the implementation of the sectoral support projects, and to have visibility afterwards on what has been done. A first step would be to publish reports on the use of sectoral support funds.
Secondly, the EU must ensure that its actions and those of its nationals do not endanger small-scale fisheries. As small pelagic species are fished and consumed by local communities, it is essential that these stocks are reserved for them. It is therefore unacceptable that vessels owned by European nationals are able to circumvent the zero access policy for small pelagics set out in the protocol by reflagging to third countries.
Banner photo: Marie Brassene gives money to her husband Jaime Brassene Jandim, to cover the costs of fuel and ice. Often women fish processors pre-finance the cost of the fishing trip to secure priority access to the catches of the pirogue, photo by Carmen Abd Ali.
Although the protocol does not allow European fleets to fish for small pelagics because they are overexploited, at least 4 European vessels have reportedly reflagged to Guinea-Bissau and are fishing for these species in the region, jeopardising the region's food security and competing with small-scale fisheries.