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COMMUNITY
Prepared by: Peter A. Murray, Terrence Phillips and John Lewis
ABSTRACT
Given the strategic importance of the fisheries sector to the Caribbean Community,
having regard to the significant contribution it makes to the level of employment and
export earnings as well as the enhancement of food security and the vibrancy of the
tourism sector of Member States, the safety of fishing vessels in the Community is a
critical issue that needs to be addressed.
Most of the inshore and coastal fishing in the region is carried out in open or halfdecked
vessels, powered by conventional outboard motors. There is a transformation under way
where the more traditional wooden vessels are being replaced by more seaworthy 710m
glass fibre vessels powered by outboard engines. The main safety issues relate, but are
not limited to:
(i) diving accidents – conch, lobster, reef fish, black coral fisheries;
(ii) accidents due to mechanical or physical problems encountered with boats,
engines, fishing gear;
(iii) emergencies due to severe weather conditions at sea;
(iv) medical emergencies and lack of first aid support;
(v) damage/destruction to property and life due to natural disasters; and
(vi) the potential impact of climate change and the rise of sea levels.
A number of initiatives related to safety at sea have taken place within the region and still
others are in the early stages of planning and/or initiation. In addition to reviewing these
initiatives, this paper suggests the implementation of a generic programme for improving
the safetyatsea of small scale fishing vessels in the CARICOM region. This programme
involves the establishment of standard specifications for the design and construction of
fishing vessels and the establishment of efficient fishing vessel inspection services as an
approach to addressing the safety issues. In attempting to achieve the required standards
and efficient vessel inspection services States need, interalia, to take into consideration:
(i) the size and ranges of fishing vessels to which the standards are to be
applied;
(ii) the prevailing weather conditions;
(iii) the distances that the vessels may operate from safe havens; as well as
(iv) the type of fishing operations to be carried out.
CARICOM Member States have an opportunity to develop suitable minimum standards
and a common approach to their implementation through technology exchange and a
harmonized system of fisheries rules and regulations in relation to fishing vessels. This
remains an imperative for the sustainable development of the fisheries sector in the
region.
Key words
Caribbean Community, safety at sea, fishing vessel standards, sustainable development
IMPORTANCE OF FISHERIES IN THE CARICOM REGION AND ASSOCIATE
MEMBER STATES
The Member States of the Caribbean Community (CARICOM) comprise Antigua and
Barbuda, The Bahamas, Barbados, Belize, the Commonwealth of Dominica (Dominica),
Grenada, Guyana, Haiti, Jamaica, Montserrat, St. Kitts and Nevis, Saint Lucia, St.
Vincent and the Grenadines, Suriname, and Trinidad and Tobago representing a total
population of approximately 15.2 million (including Haiti’s estimate of 8.8 million). The
Associate Members of the Community are Anguilla, the British Virgin Islands, the Turks
and Caicos Islands, the Cayman Islands and Bermuda. Within the Community a subset
of States are also members of the Organisation of Eastern Caribbean States (OECS).
These are Antigua and Barbuda, Dominica, Grenada, Montserrat, St. Kitts and Nevis,
Saint Lucia, and St. Vincent and the Grenadines. Associate Members of the OECS are
Anguilla and the British Virgin Islands.
The fisheries sector in the CARICOM region is of strategic importance, employing over
142,000 persons, directly or indirectly, who are mostly from remote rural communities
that lack income earning opportunities from other economic sectors. The sector earns
over US $150 million per year from export and saves the region at least three times as
much in foreign exchange since the volume of production is four times the volume of
export, accounting for up to 8% of the Gross Domestic Product (GDP) of some Member
States. Fisheries are a major source of protein especially in rural communities which
usually exhibit a higher percentage of poverty than the national average. Additionally, the
sector complements and enhances the region’s tourism through its use as a vehicle for
fishing excursions and fishing tournaments. Shrimp, queen conch, reef fishes, deep slope
and bank fishes, coastal and offshore pelagic make up the marine capture component and
are by far the most important economically in the fisheries sector. Fish production in
CARICOM/CARIFORUM countries in 2000 was 195,000 MT approximately with an
estimated value of over US$500 million. Fish consumption is high in CARICOM
Countries, in most cases higher than the world average, being second only to poultry as a
source of protein. In fact, in many rural areas it is the main source of protein. Where
tourism is important divers, snorkelers and recreational fishers also rely on fish. Sport
fishers mainly target the large pelagic fish species. It is anticipated that the sector will
grow in importance in the future.
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Description of the Fisheries in the /CARICOM Region
Bottom dwelling species found on continental and island shelves have been the mainstay
of most CARICOM fisheries. Lobster, conch, coral reef fishes, shrimp, ground fish and
small coastal pelagics make up the bulk of landings. Fish production by, and species
group composition in, CARICOM Member States have been steadily increasing from
1950 to 1999 (Haughton, 2003).
The distribution of fishery resources in the Member States of the OECS can be broadly
divided up on a geographical basis (Wilson, 1999) in a manner typical of the insular States
of the Community. The northern group have significant shallow water resources (coastal
reef demersals and pelagics) and more distantly located offshore pelagic and deep slope
resources. Amongst the southern group, shallow water resources are less significant.
Deeper water pelagic and deep slope resources are relatively near and easily accessible.
The inshore resources, particularly shallow water reef resources, shallow water lobster and
conch are under some stress. These resources have historically been the easiest and
cheapest to exploit due to their proximity and the suitability of traditional fishing methods.
In some States there is very little targeting of demersal deep slope (shelf edge) fishery
resources. Ciguatera poisoning of fish poses a particular problem in specific areas of the
Leeward Islands, making some coral reef resources unexploitable and creating a lack of
consumer acceptance for some species. In general, offshore resources and larger pelagics
are felt to have the best potential for increased exploitation, based upon some existing
resource studies and, particularly in the Windward islands, the apparently high profitability
of the fishery (Wilson, 1999). The continental Member States of CARICOM are richer in
demersal resources with shrimp, ground fish, lobsters and conch being the main income
earners. However, most of these resources are either being fully exploited or are over
fished.
TYPES AND SIZES OF VESSELS AND AREA OF OPERATION
Most of the inshore and coastal fishing in the region is carried out in open or halfdecked
vessels, powered by conventional outboard motors. There is a transformation under way
and the more traditional wooden vessels are being replaced by more seaworthy 710m
glass fibre vessels powered by outboard engines rarely smaller than 75HP and often over
115HP. In Guyana and Suriname, vessels are still being made of wood and engines for
Chinese seine vessels, which range from 21 to 30 feet length overall, and cadell line
vessels, which range from 15 to 30 feet LOA, can range from 9 to 45 horsepower; while
open gillnet vessels can have outboard engines ranging from 25 to 75 hp.
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Table 1 Employment and vessels in the fisheries of CARICOM
Member States (after Haughton 2003)
The wide variety of fishing vessels utilised in CARICOM States has been presented
elsewhere (Haughton, 2003).
SAFETY AT SEA ISSUES
Haughton (2003) has outlined a number of safety issues and problems within the
CARICOM region. These are:
(i) Diving accidents – conch, lobster, reef fish, black coral fisheries;
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(ii) Accidents due to mechanical or physical problems with boats, engines, fishing
gear;
(iii) Emergencies due to severe weather conditions at sea;
(iv) Medical emergencies and lack of first aid support;
(v) Damage/destruction to property and life due to natural disasters; and
(vi) The potential impacts of climate change and the rise of sea levels.
Haughton (ibid.) has also listed a number of strategies that could contribute to improving
the current situation. These include, inter alia:
(i) Improvement of boat designs;
(ii) Strengthening of boat inspection systems;
(iii) Improvement of communications systems;
(iv) Increasing the use of safety equipment;
(v) Improvement of search and rescue capability;
(vi) Training of fishermen in prevention, safety and survival at sea;
(viii) Provision of insurance and other forms of economic support systems for
dependents.
The need for these directions has been recognised for some time and in keeping with this
recognition, a number of initiatives related to safety at sea have taken place within the
region and still others are in the early stages of planning and/or initiation.
REGIONAL INITIATIVES IN RELATION TO SAFETY AT SEA/RISK
REDUCTION
In a process that came out of the United Nations Convention on the Law of the Sea
(UNCLOS) and was characterized by the participation of fisheries and legal officers, in
1983, the FAO Legal Office began providing assistance to Member States of the
Organisation of Eastern Caribbean States (OECS) in the development of harmonised
fisheries legislation. It was recognised that the existing international regimes had not paid
much attention to the issue of registration of fishing vessels of the size categories
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traditionally in use in Small Island Developing States (SIDS). This lacuna needed to be
filled and hence OECS Member States included provisions for this in their draft fisheries
acts. Notwithstanding the abovementioned recognition of need, ownership became the
central focus of vessel registration issues with safety requirements being seen as possible
conditions of registration rather than being enshrined in clearly defined regulations. It
was acknowledged however that there was need to link safety requirements to the size
categories shown in table one.
Vessel safety
The minimum safety standards proposed were based on vessel classification by length
over all (Table 2) corresponding to size categories stipulated under a proposed group
insurance scheme for OECS vessels (Moore et al., 1991). Cognisant of the limited
carrying capacities of the majority of fishing vessels operating in the region, the
suggested safety equipment included an amount, “believed to be affordable to fishermen,
stowage of which aboard their vessels should not pose any problems” (ibid.).
Table 2. OECS vessel classification
Class I Vessels 12ft (3.65m) and under
Class II Vessels larger than 12ft
(3.65m) up to 20ft (6.09m)
Class III Vessels larger than 20ft
(6.09m) up to 30ft (9.13m)
Class IV Vessels larger than 30ft
(9.13m) up to 40ft (12.18m)
Class V Vessels larger than 40ft
(12.18m) up to 66ft (20.10m)
Class VI Vessels larger than 66ft
(20.10m)
To varying extents States incorporated the proposed equipment requirements into their
regulatory framework, however, in most cases this was limited to the minimum required
with provision being made for upgrades. Notwithstanding the “affordability”, fishermen
in the main still do not utilise the equipment and hence, legislating for the equipment has
not led to increased safetyatsea of vessels.
Grenada, St. Kitts and Nevis, and Saint Lucia incorporated a minimum requirement based
on the list for the smallest size category and this was included into their Fisheries
Regulations. Provision was however made by Saint Lucia to upgrade to
“such safety standards as the Minister may from time to time determine by notice
published in the Gazette”.
The British Virgin Islands made more general regulations, prescribing that
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“the owner of (a) vessel shall comply with the laws relating to safety and with
such safety standards as the Minister may from time to time determine by notice
in the Gazette”.
Fishermen’s safety
The abnormally high expenses incurred as a result of the extended Search and Rescue
(SAR) missions have led to consideration being given to downscaling such activities
owing to the inability of States to finance such operations. This had implications for
Safetyatsea and the continued confidence of fishers that in the event of a distress
situation adequate provisions were being made for their safety. This is particularly the
case when one considers that the artisanal nature of most of these fisheries precludes the
installation of any but the most basic of navigational equipment in the small wooden
canoes, fibreglass pirogues or small sloops which predominate the fisheries of the sub
region. It was ascertained that a linked system between ship and shore and between
Member States would be necessary to ensure effective coverage of the marine space of
the subregion. Such a network would ensure that distress cases can be identified, located
and rescued without undue delays, thus, the system would strengthen the coordination of
SAR operations by the relevant authorities and would seek to reduce the enormous
expense incurred in SAR activities.
A major factor in losses at sea is using small boats for fishing offshore and failure to
carry basic lifesaving equipment as required by law (ibid.). Many fishermen are known to
“borrow” safety equipment from others solely to pass the safety inspection thus belying
the effectiveness of the inspection process. Manpower shortages prevent continuous
monitoring of small fishing vessels. The only solution is provision of more training and
education in fishermen’s responsibilities.
Vessel Monitoring systems (VMS) have to be considered as potentially playing a
significant role in search and rescue (SAR) and safetyat sea (SAS) as locating a vessel in
a timely manner can greatly enhance the chances of successfully mitigating a given
distress situation. The increasingly popular cellular telephone systems being introduced
in the region, with their roaming capabilities can also assist with communications during
emergencies at sea.
VESSEL SAFETY AND ACCESSIBILITY OF CREDIT
In the light of a need for diversification and a policy goal of modernisation within the
fisheries sector, and in order for fisher folk to become more responsible fishers they will
have to make new investments in more environmentally friendly technologies and
practices. They need to make incremental investments in suitable equipment and
appropriate technology in order to sustain and eventually increase their catches and
improve the quality of the fish being offered on the market. They also have to acquire
suitable safety gear and improve safety practices which will also require new investment.
However they are mostly artisanal fishers, the majority of whom have minimal resources
and/or access to resources to finance the required investment. (T. Phillips, CRFM
Secretariat, pers. comm.). The availability and accessibility of suitable finance to
facilitate sectoral development are severely constrained by the hesitation of commercial
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banks and credit providers to make loans against vessels whose quality is uncertain due to
the absence of boatbuilding standards or accredited inspection. At the 1999 OECS
Symposium on the Development of a Fisheries Management and Development Strategy
for the OECS Region (OECS, 1999) it was clearly indicated that this is further
exacerbated by:
(i) High initial fees (commissions, inspection fees);
(ii) The cost or unavailability of insurance;
(iii) The difficulty in providing sufficient guarantees and collateral; and
(iv) The Increased incidence of natural disasters.
Fisher folk are among those with the highest occupational risk related to the threat of loss
of income and loss of life. For example, hurricanes and other unfavorable weather
conditions damage or destroy their boats and support structures at landing sites, deny
them access to their catches and curtail their fishing for long periods. Consequently, they
do not earn any income under these circumstances. They are also exposed to serious
personal risks arising from severe and unpredictable weather conditions, poorly
constructed boats and increasing conflict at sea including armed robbery. As a rule, few
fishermen insure their vessels since there appears to be a lack of willingness by insurance
companies to cover what is seen as a high risk. For investments in larger vessels than
those currently in use across the region, commercial banks will normally expect to be
able to use the insurance on the boat as collateral (if not the fisherman’s equity) for the
loan. If a vessel is itself to be insured before a loan is disbursed, it has to be surveyed by
a certified marine surveyor. In one OECS Member State, fees for such a person have
been cited at EC$ 4,075 per hour (Wilson, 1999).
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VESSEL SAFETY AND THE UTILIZATION OF HIGHLY MIGRATORY
SPECIES
Increased utilisation of highly migratory species as a means of diversification of the
fishing industry is seen within the OECS Fisheries Strategy as being assisted by
identifying mechanisms to reduce risk in the fishing industry, among these are the need
to:
(i) Identify alternative insurance schemes;
(ii) Develop mechanisms for instituting alternative insurance schemes; and
(iii) Identify mechanisms to reduce the impact of natural disasters on the fisheries
subsector.
Again the safety issues become cogent in this regard. Many fishers in attempting to
change the focus of their fishing activities have recognised the need for better vessels
capable of fishing safely farther offshore for pelagic species or on the deep slopes for
associated species. In a number of cases, the required improvements have been made by
the importation of vessels or modifying existing vessels. The problem often is that a
significant number of the vessels imported for this purpose either did not enter service as
fishing vessels or were substandard at the time of purchase. Thus, the safety of the
personnel utilizing these vessels to target fish species further offshore is severely
compromised.
VESSEL SAFETY: IMPLICATIONS FOR THE FUTURE
Notwithstanding the existing inclusion of limited amounts of safety equipment
requirements in the regulatory framework of some Member States, there is urgent need to
pay more attention to the design, construction and equipment of vessels within the size
category commonly in use in the region, especially since there are no internationally
agreed legal instructions in force for the safe construction of vessels under 24 metres in
length, into which category most regional vessels fall. The implications of any proposed
safety regime in the context of the requirements of the FAO Code of Conduct for
Responsible Fisheries (see for example Ruckes, 1996) and other international fisheries
agreements (c.f. Murray, 1999) need also to be explored. The overall aim of these
endeavours is to make fishing a safer activity, particularly if States are to exploit more
effectively the potential fish yields within their exclusive economic zones and beyond.
A number of States have put in place Maritime Authorities based on IMO initiatives.
Included in this initiative is the promulgation of shipping acts based on a model that
“takes into consideration the most recent international conventions relating to shipping”
(McCalla, 2000). Sections 5052 of the model shipping act refer specifically to small
vessels defined as vessels under 24 meters in length. However, while the model act
speaks to the issue of the “Safety Convention” it is clearly stated that within the context
of this act the Safety Convention “unless expressed provided otherwise, … shall not
apply to … fishing vessels” (ibid.). Thus whereas the model shipping act states that “the
9
Minister shall make such regulations as may be necessary to give effect to the Safety
Convention and its related instruments; … which shall prescribe the requirements for the
hull, equipment and machinery of Safety Convention ships and their survey and
inspection”, the end result is that we are again left with a lacuna with regard to “small
fishing vessels”. This gap will have to be filled as a matter of urgency if the aspirations
of States with regard to the development of their fisheries sectors are to be met. To this
end “Model Shipping (Safety of small fishing and pleasure vessels) Regulations” have
been developed (C. Roach, IMO Regional Safety Advisor, pers. Comm.) specifically for
vessels of less than 24 metres in length.
Recently, standards on which a legal framework for vessel inspection will be based were
defined in collaboration with the FAO, OECS Member States and Secretariat, and the
Government of Barbados. In particular, this initiative developed common standards for
the design, construction, measurement and the equipment of fishing vessels which
can/will subsequently be incorporated into fisheries regulations. These standards, which
are to be applicable to all new fishing vessels entering into regional fisheries and set
standards for the modification of existing vessels, will hopefully also serve to enhance
fishing effort diversification programmes while promoting greater cooperation between
individual fisheries divisions/departments and the (relevant) national maritime
authorities.
In the light of current general legal frameworks, regulations setting out the standards for
construction of the local fishing vessel will need to be set up so that they are used by the
competent authority:
(i) to decide whether to give permission for the construction of the vessel;
(iii) to enable the competent authority to assess whether the vessel should be
issued a valid inspection (seaworthiness) certificate to enable such vessel to be
registered and therefore be prequalified for issuance of a fishing vessel
license.
In addition, if standards of construction are to be improved and if there is to be an
obligation in law for boat builders to comply, a system of technical education and
training has to be in place. To do this, however, a complete assessment of the longterm
needs must be carried out nationally and the results collated and analysed with the needs
of the region in mind (FAO, 2001b). The scope of the assessment procedure would be
quite wide and although the tendency may be to investigate forms of institutional
training, it should be borne in mind that traditional forms of training, such as
apprenticeship schemes must not be discounted. The assessment should also include a
review of funding possibilities to ensure that the whole of the financial burden does not
fall on the boat builder. In this regard, there may be a need to review the control
mechanisms that may have to be put in place to ensure compliance and transparency.
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SYNTHESIS
The most recent (FAO, 2001d) proposals for fishers’ safetyatsea reflect the experience
gained through the national workshops (FAO 2001a) as well as a series of meetings with
Maritime Administrations, Fisheries Administrations, boat builders and fishermen in the
subregion. The provisions of international instruments, as and where they apply to
fishing vessels, codes of practice and voluntary guidelines in relation to boat building
technology have also been taken into consideration. These proposals therefore, give legal
substance to standards for the safety construction, equipment, safety equipment as well as
the arrangement of a vessel that would allow its safe operation in accordance with the
terms of its certificates of inspection giving consideration to:
(i) provisions for a seaworthy hull;
(ii) protection against fire;
(iii) means of escape in case of a sudden unexpected casualty;
(iv) guards and rails in hazardous places;
(v) ventilation of enclosed spaces; and
(vi) necessary facilities for crew.
Legislation
It is considered (FAO 2001d) that the harmonized legislation could be tailored to the
situation and needs of individual countries since it:
(i) distinguishes between the act of registering and the licensing of a vessel as
well as the issuing of a licence to fish;
(ii) takes into consideration the fact that many vessels below 24m have the
capability to fish on the high seas adjacent to the region;
(iii) confirms that vessels are entitled to fly the flag of the State in which they are
registered:
(iv) incorporates basic requirements that vessels should be constructed and
inspected in accordance with the established standards; and
(v) provides for a phased approach in the implementation of the provisions of
legislation and for appropriate exemptions where appropriate.
Standards
The need was confirmed (FAO 2001d) for minimum acceptable standards for the
construction of small fishing vessels. It was concluded, however, that the introduction of
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standards was simply one component within an integrated management system for the
safety of fishermen and fishing vessels. Therefore, to ensure that all new construction
meets the standard specification, the boat builders have to be well enough trained and
qualified. Furthermore, experienced inspectors must be on hand to supervise construction
and for periodic inspection of a vessel thereafter.
Inspection services
In most cases in the region, the fisheries or the shipping act does not clearly set out the
responsibilities of each of the agencies that has a vested interest in maritime safety. For
this reason no proposals for institutional strengthening could be put forward for
individual countries, until such time as the fisheries or the shipping act(s) is/are suitably
amended. Nevertheless the FAO (2001d) identified the weaknesses in each case and it
was agreed that there was need for Fisheries Administrations to take the initiative at the
national level to ensure that adequate arrangements are in place for the provision of
vessel inspection services. It also concluded that there should be follow up at the national
level in identifying the competent agency or agencies for vessel inspection. In this
regard, an acceptable common approach could be to designate Fisheries Administrations
as the lead agencies and to give the Chief Fisheries Officer overall responsibility.
Private Sector
FAO (2001d) concluded that the number of fibreglass boats is on the increase and that
many of these boats are imported. In the long term, should there be a major swing to
fibreglass across the region the sector would most likely fall into fewer hands in much the
same way as the pleasure craft industry in the region developed. Indeed, that sector may
well look at the possibility of moving in on the fishing vessel market with a consequent
increase in costs to the fishing industry. If this happens, it would lead to a decrease in
"one off" designs and smaller enterprises would either go out of business or hope to
survive on repair work.
Nevertheless, the FAO (2001d) Project concluded that wooden hulls would continue to
be the backbone to the industry requiring skills in building, in modification and in the
repair and the small sized companies will continue to dominate. This sector will not
suffer change gladly, which means that determined efforts must be made to impress upon
boat builders the need to become more business like. Therefore training programmes
must also address the matter of "how to run a business" and this approach may help to
give more respect to the smallscale sector and attract new entrants to the trade. This
could be further enhanced through a revitalised approach to apprenticeship schemes.
Training
Funding is likely to be a problem not only in setting up the programmes and selecting
training locations for the inspector cadre, but also in dealing with the boat builder. There
will certainly be a need to upgrade the trainers in most cases. This would be an urgent
first step following the proposed total manpower assessment throughout the islands.
Overall, the course designers must realize that due to the scope of the programme, the
skills to be imparted cover the semiskilled grades, the trades and middle management.
This will be no mean task.
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Elements of a Safetyatsea programme for smallscale fishing vessels
A generic programme for improving Safetyatsea for small scale fishing vessels in the
CARICOM region can be put forward. In general, safetyatsea issues can be divided
into (1) safe “boating” and (2) safe “manning”. Within this context, interventions should
cover (a) prevention of incidents, and (b) emergency management. The Gannt Chart
below proposes a time line for the outputs for this programme: awareness building;
legislative enhancement; training; and, enforcement and operations. It is suggested that
the general suite of activities would fall under the four major output headings
improvement.
NB: Solid lines indicate durations directly supported by the programme; dashed lines
indicate durations for which alternative funding was/should be sourced
CONCLUSION
The establishment of standard specifications for the design and construction of fishing
vessels and the establishment of efficient fishing vessel inspection services are only one
approach in addressing the issue of safety of life and property at sea (Fitzpatrick, 2001).
CARICOM Member States should also seek to improve the performance of fisheries
management to ensure, that in every aspect, the principles set out in the Code of Conduct
for Responsible Fisheries and the provisions therein are applied. The general trend in
relation to fishing vessel design, construction and safety is to arrive at international,
regional or subregional agreements on minimum standards to be adopted (ibid.). In
attempting to establish such standards States need, interalia, to take into consideration:
(i) the size ranges of fishing vessels to which the standards are to be applied;
(ii) the prevailing weather conditions (common to the negotiating States);
(iii) the distances that the vessels may operate from safe havens; as well as
(iv) the type of fishing operations to be undertaken.
CARICOM Member States have an opportunity to develop suitable minimum standards
and a common approach to their implementation through technology exchange and a
harmonized system of fisheries rules and regulations in relation to fishing vessels. This
remains an imperative for the sustainable development of the fisheries sector in the
region.
13
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