The Trans-Boundary Diagnostic Analysis (TBDA) for the Black Sea

This cooperative study by representatives of all coastal States noted that almost one third of the land area of continental Europe drains into the Black Sea, and that over a period of three decades this sea has suffered catastrophic degradation due to massive nutrient overloading of river inflows and a consequent overproduction of phytoplankton with negative hypoxic and turbidity impacts on bottom fauna and flora. In the mid 1980’s, the consequent sharp decline of fisheries resources was aggravated by introduction of the jellyfish (ctenophore) Mnemiopsis leidyi from the eastern seaboard of the Americas. This quickly reached a biomass estimated at 900 million tons and adversely affected fish larvae and their food organisms.

The first step taken by Black Sea countries in face of this catastrophe was the signing of a “Convention for the protection of the Black Sea against pollution” in April 1992 in Bucharest – the “Bucharest Convention” with specific protocols against land-based pollution, waste dumping and joint action in the case of oil spills. Its implementation was to be overseen by the Istanbul Commission, set up for this purpose. A ‘Ministerial Declaration on the Protection of the Black Sea’ was signed by all 6 Ministers of Environment of coastal States in Odessa in April 1993; based largely on the Agenda 21 agreed to at the 1992 United Nations summit in Rio de Janiero. The Black Sea States requested assistance from the Global Environmental Facility (GEF) which in June 1993 set up a 3-year $9.3 million project, with collateral funding from the European Union, the Netherlands, France, Austria, Canada and Japan. This provided the resources to set up the Black Sea Environmental Programme (BSEP).

As its first step in creating a Black Sea Action Plan, the BSEP completed a systematic scientific analysis of the root causes of environmental degradation in the Black Sea. The GFCM/FAO provided major support to this activity in the field of fisheries, and the following extracts the fisheries component from the much larger range of activities concerned with other more specifically environmental issues, which will not be entered into here, but are evidently highly relevant to recovery of sustainable resources. The TBDA considered these issues at three levels:

Level 1: A ‘logistical map’ of perceived problems, their root causes, and areas for action in the fisheries sector.(Clauses in bold are high priority).

Perceived Major Problems / Transboundary Elements / Main root causes / Areas where action is proposed
Decline in commercial fish stocks / Virtually all fisheries resources are shared or trans-zonal (straddling). Their management requires the efforts of more than one country. / 1) Poor legal framework at national/regional level
2) Inadequate implementation of available regulatory instruments
3) Inadequate financial mechanisms and support
4) Inadequate planning at all levels
5) Insufficient public involvement / 1) Living resource management
2) Reduction of pollution
3) Sustainable human development
Loss of habitats, notably wetlands and shelf areas / Motile biotic resources often use wetlands and other coastal habitats as nursery areas / 1) - 5) above / As above
Loss, or imminent loss of genomes of endangered species / Endemic/rare species of regional/global significance lost due to impact of eutrophication on ecosystem biodiversity/abundance / 1) – 5) above / 1) and 2) above
Replacement of indigenous species by exotic ones / Exotic species are a global trans-boundary problem / 1) – 5) above / 1) and 2) above

Level 2: Action Areas: an overview of the specific actions proposed for each issue. (Commercially exploited species)

PROBLEM / STAKEHOLDERS / UNCER-TAINTIES / PROPOSED ACTIONS / COSTS / PRODUCTS AND MILESTONES
1. Most BS fisheries suffer from over-capitalization + overexploitation. Catch values declined by at least $170 million from early 80’s to mid-90’s. / Government agencies responsible for fisheries / Ministries of the Environment /
The fisheries sector. / Reliability of current fisheries statistics / - Governments advised to adopt and implement by Dec 1999 national authorization schemes to ensure no fishing occurs without an authorization specifying terms and conditions (T+C). T+C to include species authorized to harvest, catch limit, seasons and areas fished, and allowable fishing gear.
- Cost of this proposal at the expense of governments. Suggest a pilot project. / By 2000, no unauthorized fishing in the BS and all fishing regulated by catch, area, season, gear.
Inadequate fisheries enforcement / -Responsible government agencies/ Inspectorates of fisheries/ Ministries of the Environment. / - Governments to make full use of prescriptive and enforcement powers defined by Int’l law.
- All States to establish EEZs as soon as possible. / Adequate legal regime for effective enforcement.
The main fisheries resources of the BS are shared and require cooperative management for sustainability. / -Responsible government agencies/ Ministries of the Environment/ Regional fisheries bodies. / Negotiations so far on a fisheries convention for the BS are so far inconclusive: It is uncertain when they will be concluded. / - Governments advised to establish by the end of 1996 an Interim Advisory Group on Fisheries to consider all technical matters, pending adoption of a Fisheries Convention.
- Governments advised to establish a regional licensing system by 2000, pending adoption of a Fisheries Convention. They should gradually reduce capacity. Initially, the number of licenses issued should be fixed on the basis of reference years chosen by each country.
By 2005, governments are advised to implement a quota system for the allocation of stocks on a country basis. / By 1997, an interim body in a position to address regional fisheries problems.
By 2000, a regional licensing system which can be used to gradually reduce fishing effort in the region.
By 2005, a quota system based on national allocations
Anadromous stocks, in particular, are overexploited / - Government agencies responsible for fisheries / Ministries of the Environment/ Regional fisheries bodies / The private sector. / Governments are advised to adopt, in agreement with international law, agreements regulating their fisheries on anadromous stocks by 2000. / By 2000, regimes to be in place which will recover high value fisheries for anadromous stocks.
Gaps in information on the status of many BS stcks / Government agencies responsible for fisheries / Ministries of the Environment /The fisheries sector. / Precise information on the status of important commercial stocks / Governments are advised to conduct cooperative evaluations of stocks and fishing activities by 1998, updated then every 5 years, and coordinated by the interim Commission. The (annual) cost of such evaluations was estimated at $400,000. / By January 1999, a comprehensive overview of the state of fisheries resources and fishing activities to be completed.
Ecosystems important for the rehabilitation of stocks are degraded. / - Ministries responsible for fisheries management / Ministries of the Environment/ The fisheries sector. / Governments to rehabilitate ecosystems of particular importance for fisheries by:
-establishing Phyllophora reserves
-Restoring anadromous fish spawning areas
-Rehabilitating coastal lagoons.
Cost estimated at $300,000/pilot project.
- Governments to construct artificial reefs in degraded nearshore areas by Dec. 1999. Cost of this last proposal estimated at between $0.3 – 2 million per project. / By 2000, protected areas for stock rehabilitation will have been established.

Problems in developing Aquaculture in the Black Sea

Problem / Stakeholders / Uncertainties / Proposed actions and costs / Products and milestones
A/ Technical barriers to development / Ministries of Agriculture/Fisheries /Environment/Trade/Health/Private sector. / Lack of information on suitable target species and on product marketing (in Europe) / Technical assistance/feasibility studies on different species/marketing/research /business management training. / Increase aquaculture production by 50% by 2005 (with proper EIA)
Poor technical skills (equipment, disease, hygiene control, environmental impacts) / - Ditto - / Research on national legislation regulating aquaculture/sea ranching inc. location, commercial strains, imports, exotics, quarantine/hygiene / Introduction of national legislations by 2000
Poor business management skills (marketing, finance) / - Ditto -
Underdevelopment of government loan scheme for fish farmers / - Ditto -
B/ Issues relating to int’l laws / - Ditto - / Lack of info on anadromous fisheries/stocks / Research a possible international agreement on importing exotic species and anadromous fisheries / International agreement by 2005 on imports of exotics
Importation of exotic species should be regulated under the Biodiversity Convention / - Ditto - / - Ditto -
Investment in sturgeon hatcheries is not shared by all harvesting the stocks / - Ditto -
C/ Issues relating to conservation of biodiversity / - Ditto -
Releasing commercial brood stock causes genetic contamination of wild stocks. / - Ditto - / Research on Int’l / National legislation on release of commercial brood stocks ($50,000) / Introduction of Int’l/Nat’l legislation by 2010 regulating release of commercial brood stocks