[Series] Part 4: Overall optimization through centralized national management - Considering the future of Japan's fisheries resource management

[Series: Considering Japan's future fisheries resource management]
Our fourth installment features a contribution from Hiroshi Izumisawa, CEO of Izumisawa Suisan Co., Ltd. Mr. Izumisawa manages ten fishing grounds across Japan, primarily in Kamaishi City, Iwate Prefecture, as well as Miyagi Prefecture, Shizuoka Prefecture, and Hokkaido. He practices traditional Japanese fishing methods, including fixed-net fishing, in each location, and is also involved in ASC-certified cherry salmon farming in Kamaishi. He continues to garner attention as a leading producer in Japan's fishing industry, having led discussions on the first revision of the Fisheries Law in 70 years.

1. Problems with Japan's fisheries resource management

Fishermen have growing doubts about discrepancies between resource assessments and actual conditions

The government determines the allowable catch limits for TAC species, which form the basis of resource management, based on resource assessments conducted by research institutions. While appropriate, scientifically based allowable catch limits are desirable, for some species, catch limits exceed those recommended by researchers. The government does not set numerical targets solely based on resource assessments conducted by research institutions; rather, it determines allowable catch limits by comprehensively considering the opinions of producer groups, academic experts, politicians, and local governments. However, this has led to a decline in the reliability of allowable catch limits and criticism that they place more emphasis on public opinion than scientific evidence. Furthermore, in some areas, resource assessments for TAC species significantly differ from actual migration volumes (the number of schools of fish, such as mackerel and sardines, approaching coastal areas (in terms of number and weight)). This has forced production sites to curb fishing, leading to an increasing number of fishermen questioning the accuracy of resource assessments and the validity of allowable catch limits.

Efficiency-first allocation of fishing quotas undermines regional characteristics and seasonality

Catch quotas are broadly categorized by fishing category (permission by the Minister or by the Prefectural Governor) and are further allocated annually to each prefecture. Initial allocations for bluefin tuna catches were based solely on catch records for the base year, and it has been pointed out that this allocation did not adequately consider the characteristics of the region or fishing method, or past overfishing that led to resource deterioration. The collection and distribution of a wide variety of seafood from fishing villages across the country, taking into account regional characteristics, seasonality, and a diversity of fish species, is a form of consumption that has supported Japan's diverse food culture. However, there have been cases where highly efficient fishing methods have taken up catch quotas in advance, resulting in the suspension of landings for small-scale fishermen in rural areas who produce a diverse range of fish species.

Heavy workload of local governments

In order to continue operating their fishing business, producers strive to secure large allocations of fishing quotas and maximize sales with limited catches. Prefectures allocate the allocated quotas to fishing methods and organizations, but much of the work is limited to consensus-based methods, placing a heavy burden on administrative officials. Furthermore, with stock assessments of TAC fish species fluctuating and prefecture quotas for allowable catches increasing or decreasing, reaching a consensus is extremely difficult. It is necessary to clarify the rights and obligations of producers in the domestic fishing industry and to establish nationwide rules under the national government's leadership to facilitate fisheries adjustment work by prefectures.

(Photo: Provided by Izumisawa Fisheries)

2. What should Japan's fisheries resource management be like in the future?

Stock assessment based on scientific evidence

The revised Fisheries Act, which came into effect in December 2020, stipulates that fisheries resources should be maintained and restored to sustainable levels. Resource management targets are set for each fish species, resource assessments are conducted based on scientific evidence, and appropriate allowable catches are set to restore resources and ensure their sustainable use. Based on this basic policy, it is most important to respect the allowable catches proposed by research institutions based on resource assessments and not to change them based on public opinion.

Add technical controls to how quotas are allocated

It is impossible to manage resources without considering the characteristics of fishing methods, such as large-scale offshore fishing and small-scale coastal fishing, operational fishing gear and fixed fishing gear, etc. Various types of fishing are not in competition with each other, and by keeping a distance from each other, it is possible to make use of each other's strengths.In addition to output control, new regulations must be established that include technical controls that restrict fishing gear and methods, such as limiting mesh size and establishing closed seasons and areas, and that allocate fishing quotas in a way that ensures a balance of fishing opportunities.

Improving resource assessment accuracy through centralized data management

It is necessary to enhance the various data used for resource assessments, and to make them smarter and more real-time. As the number of TAC fish species increases, it is important to conduct highly accurate resource assessments through appropriate catch reporting, shortening the time required for data compilation and analysis, etc. To achieve this, centralized data management is essential. Currently, data useful for resource assessments is collected and managed, such as observation data from research vessels and fixed-point observations by prefectures, but data tends to be scattered due to vertical management by executive agencies and budgetary objectives. It is necessary to improve the accuracy of data analysis through centralized management by the national government.

Preserving traditional fishing methods to protect fishing villages

In rural areas, there are communities whose livelihoods depend on traditional fishing methods that have been passed down for generations, and preserving these traditional fishing methods is essential to the survival of fishing villages and the promotion of the fishing industry. It is important to preserve the diversity of fishing and the tradition of food culture, along with resource management. In rural areas, there are local production brands that have improved their product value by putting in the effort, rather than focusing on economic rationality. It is important to have policies that intentionally protect what should be preserved and ensure the survival of local fishing villages.

Overall optimization through direct government control

Resource management can be achieved through wide-area efforts, and implementing resource-managed fisheries requires regional cooperation that transcends prefectural boundaries. Even for TAC fish species, disparities in catch volume occur between prefectures, making it difficult to gather opinions and reach consensus within each region. Direct national management is necessary to ensure the prompt implementation of harvest plans in response to the changing resource situation of TAC fish species. Furthermore, it is important to comprehensively manage fisheries licensed by prefectural governors, fishing rights fishing, and recreational fishing under national authorization. Therefore, we believe that the overall system should be optimized through the granting of Minister of Agriculture, Forestry and Fisheries authorizations and catch quotas, and then the national government should directly manage fisheries resources.

Hiroshi Izumisawa
Representative Director of Izumisawa Suisan Co., Ltd.
He has been familiar with the family business of set net fishing since he was a child. During his generation, the company expanded its operations outside of Iwate Prefecture, and currently operates ten set net fishing sites in Hokkaido, Iwate, Miyagi, Shizuoka, and Kochi, with a focus on Onagawa Town, Miyagi Prefecture, and sells fresh seafood. He is known as a leading expert on set net fishing, having participated in the Fisheries Agency Fisheries Policy Council and the Regulatory Reform Promotion Council related to the revision of the Fisheries Law.

Click here for an interview with Hiroshi Izumisawa
The unknown nature of set nets: The future of coastal fisheries with selective fishing

<Past series>
[Series] Thinking about Japan's future fisheries resource management
Part 1: Reasons for the decline of Japan's fisheries resources and four necessary measures
2nd session: Discussion among ocean stakeholders
Part 3 - Connecting food culture to the future - Considering the future management of Japanese fisheries resources