Analyzing Japan's Fisheries Revitalization from an International Perspective (Part 2)

Gakushuin University
Faculty of Law, Department of Political Science, Graduate School of Political Science, Department of Political Science, Professor
Isao Sakaguchi

Professor Isao Sakaguchi of Gakushuin University points out that the challenges facing Japan's fisheries industry are not merely on-the-ground issues, but are rooted in the very structure of the system and decision-making process. In the first part of this interview, he discussed how, within a history that has emphasized the adjustment of interests primarily driven by fishermen, efforts in scientific resource assessment and monitoring have lagged behind, resulting in a lack of data that is currently hindering resource management and aquaculture management.

In Part 2, we will explore best practices in fisheries management both domestically and internationally, and the roles that each party should play from a global governance perspective. We will seek hints for building a management system based on scientific evidence that is not bound by conventional frameworks, and for collaboration that transcends different positions.

Small-scale projects have transformed the future. Common characteristics of regions that have succeeded in resource management.

—In the first part of this interview, you discussed the challenging current state of resource management in Japan. Could you tell us about some successful examples of resource management within Japan?

For example, the small coastal fishing boat fishermen of Chiba Prefecture (Katsuura City, Chiba Prefecture) have voluntarily implemented size restrictions that the prefecture does not, and have also restricted fishing gear and bait to avoid negatively impacting resources. They have also shortened their operating hours to 5 hours a day in 2010 and to 4 hours in 2013. As a result, their catch has increased in the long term. They are achieving results by practicing something that should be obvious but is often difficult: not overfishing and allowing resources to recover.

From a document on the management of splendid alfonsino resources, created by the Chiba Prefecture Coastal Small Fishing Vessel Fisheries Cooperative Association.

Oyster farmers at the Tokura branch of the Shizugawa branch of the Miyagi Prefectural Fisheries Cooperative also reduced their farming density by more than half during the process of obtaining ASC certification. As a result, they were able to ship oysters in just one year, whereas previously it took three years to harvest them. Reducing farming density has resulted in lower costs and labor, as well as faster shipping, producing very positive results.

Structural problems of Japan's fisheries system and organizations

—What are the difficulties in resource management in Japan?

As I mentioned earlier, the golden snapper fishing in Chiba Prefecture involves only small-scale fishermen, but it is based on the experience of neighboring local fisheries cooperatives uniting and cooperating against large fishing vessels that catch squid and mackerel. It is also important to note that golden snapper are a species that does not migrate widely. This can be said to be a rather exceptional success story in the fish industry.

I believe a core problem in Japan's coastal fisheries lies in the governance of fisheries cooperatives. General companies have compliance (Legal compliance) and CSRTo engage in (corporate social responsibility) initiativesThis has become the norm. It's what's known as corporate governance, but I think the fisheries cooperative world is lagging behind in its efforts to improve governance.

In the field, there are instances where the provisions of the Fisheries Cooperative Law are not respected. This is a problem that goes beyond resource management. In addition, there are few scientists who point out the challenges facing Japanese fisheries, and fishermen are losing opportunities to learn. Cooperatives where the chairman and members actively learn are not swayed by short-term interests, but instead work on improving fisheries from a long-term perspective and achieve results.

Learning from overseas initiatives: Science-based fisheries management

—Are there any good overseas examples that could serve as hints for resource management in Japan?

In South Korea, based on the analysis of past monitoring data from aquaculture farms, the "Fisheries Management Act" will be implemented from 2025, and regulations will be put into place to restrict licenses based on the results of environmental monitoring. Furthermore, it has been announced that most fish species will be shifted to Total Allowable Catch (TAC) management. If there are too many fishing vessels relative to the resource volume, the government is also working to reduce the number of surplus vessels using government budgets. In addition, Jeju Island, where aquaculture is thriving, has about three fisheries research stations, which are considerably more well-equipped than fisheries research stations in Japanese prefectures, and conduct research on the production of seedlings for various fish species.

This is one of the three fisheries research stations on Jeju Island. Compared to those in Japan, it has considerably more extensive facilities and conducts research on the production of seedlings for various fish species.

Other countries have long had strict controls in place. Norway controls the number of farmed salmon based on the salmon louse infestation, and Chile controls the number of salmon that can be licensed for aquaculture based on the salmon mortality rate. As for wild salmon, Canada, Alaska, and Russia, among others, have hatchery and release programs similar to those in Japan.#1We will not rely entirely on it, and the importance of natural spawning#2They are aware of this as well. In other words, these countries are managing things based on science.

*1 Salmon hatching and release: A project in which eggs and sperm are collected from adult salmon that have migrated upstream into rivers, artificially fertilized, and raised into fry which are then released into rivers.
*2 The importance of natural salmon spawning... Mr. Sakaguchi points out that relying on hatchery release and not allowing natural spawning reduces the genetic fitness of salmon to environmental changes such as global warming, and in the long term, the return rate will decrease.

This is an artificial riverbed in Canada. Gravel has been laid down and the riverbed has been made shallow to make it easier for salmon to spawn. An official from Canada's Department of Fisheries and Oceans reportedly said, "Wild, naturally spawning fish have a higher genetic adaptability to changing environments > fish that spawn on artificial riverbeds > fish that hatch and release, so it is important to protect wild, naturally spawning areas that are not tampered with by humans."

On the other hand, Japan lacks sufficient budget, personnel, and equipment for its research sector, resulting in a significant delay in scientific investigation and analysis. Nothing can begin without researchers who conduct and disseminate research and analysis to first understand "what the problem is."

Furthermore, as I mentioned in the first part of this article, the fact that there are too many fishermen's representatives on advisory bodies such as the Sea Area Fisheries Adjustment Committee and the Resource Management Subcommittee of the Fisheries Policy Council is undeniably one of the reasons why Japanese fisheries are being kept away from science. Advisory bodies on resource management and aquaculture management should be composed mainly of academics and experts, creating a system that allows for scientific opinions to be provided to those on the ground.

—I see. It's important to actively adopt good practices from East Asia, which has a similar marine environment to Japan.

The key to achieving sustainable seafood: Structural transformation initiated by companies.

—According to what you said in the first part of this interview, in global governance, which is your area of ​​expertise, not only states and international organizations, but also NGOs, corporations, and consumers are actors in solving problems. What roles should each of them play?

NGOs need to work on problems by connecting large and small businesses and consumers, and ideally, the state (government) should implement tax reforms to enable NGOs to fully utilize their capabilities. Furthermore, the government should allocate sufficient budget, personnel, and equipment to the research sector.

Major fisheries companies and distributors should set a deadline for when they will procure domestic fisheries products that do not have proof of sustainability, demonstrating a firm stance against the domestic fisheries industry. Consumers should not only consider whether a product is cheap or tasty, but also question when small fish are sold cheaply or when products that should be expensive are sold cheaply, and consider the possibility that their consumption habits may be negatively impacting the environment and resources.

—Finally, could you give us some hints on how to further develop Japan's fisheries industry?

Looking around, most developed countries have achieved sustainable resource management, leaving Japan behind. I believe that each sector needs to undertake revolutionary initiatives to catch up with the international community, while adopting a global governance approach that involves governments, international organizations, NGOs, corporations, and consumers in solving the problem. However, this revolution doesn't have to be difficult.

For example, Global Ocean Works Group, which has obtained ASC certification for yellowtail farming.Representative Yuji Masunaga has shared his vision with all employees, including producers on the ground, from an early stage: "In the future, we want to produce sustainable feed ourselves and achieve consistently sustainable aquaculture." This can be considered a revolution in corporate initiatives. When the top management clearly recognizes the challenges, presents solutions and concrete steps, and works on them throughout the entire organization, if companies, government agencies, and fisheries cooperatives/organizations each implement such initiatives, Japanese fisheries will surely change dramatically.

Isao Sakaguchi
Graduated from the University of Tsukuba in 1994. Specializing in global environmental governance and international relations, he obtained his PhD from the University of Tokyo Graduate School in 2004. After serving as a Japan Society for the Promotion of Science Research Fellow and a Visiting Researcher at the Yale University Center for International and Regional Studies, he became a professor in the Faculty of Law at Gakushuin University in 2005. He received the Pew Ocean Fellowship in 2017. His research focuses on global governance theory, as well as global environmental regimes and fisheries resource management.

Interviewed and written by: Shino Kawasaki

After working at a design firm planning and editing corporate advertisements, she became a freelance writer, copywriter, and food coordinator in 2016. She writes in a variety of fields, including lifestyle, food and drink, and medicine.