IJERD – International Journal of Environmental and Rural Development (2021) 12-2

Research article
erd

Factors Driving the Effectiveness of Community Fisheries
Management Resulted from Fisheries Policy Reforms
KAING KHIM*
Fisheries Administration and Royal University of Agriculture, Phnom Penh, Cambodia
Email: kaingkhim@online.com.kh or kaingkhim8@gmail.com

HORI MINA
Kochi University, Japan.

KANG KROESNARoyal University of Agriculture, Phnom Penh, Cambodia

SO NAM
Inland Fisheries Research and Development Institute, Phnom Penh, Cambodia Mekong River
Commission of Lao PDR
Received 11 January 2021

Accepted 2 August 2021(*Corresponding Author)

Abstract The fisheries policy reforms on co-management in Cambodia have been
implemented for almost two decades, starting its first reform in 2000 and its second reformin 2012. These reforms had promoted the organization of 516 Community Fisheries (CFis)around the country. After two decades of the CFis operation, it is noteworthy to identify thedriving factors that brought the functionality and effective operation of the CFi on comanagement of the fisheries resources in Cambodia. The study aims to identify the different
driving factors that led to the functionality and effective operation of the CFis comanagement of the fisheries resources development and sustainability resulting in the
improvement of food security and socio-economic status of the CFi members. To identify
those factors, the study purposely selected 16 CFis among the 516 CFis and randomlyinterviewed 527 CFi members from these CFis. To support the quantitative information fromthe interviews, the study conducted 16 Focus Group Discussion (FGD) in the 16 selected
CFis for validation and qualitative information. The results show that there are two key main
factors influencing the functionality and effective operation of the CFis. First, according to
96% of the CFis members respondents and all FGDs respond, the legal framework that
supports the process of CFi establishment and co-management of the fisheries resources havegiven them the legal rights and opportunity to use and sustain the fisheries resources. The
legal frameworks supporting the CFis establishment includes the Royal Decree on the
Establishment of CFi, the Sub-decree on CFi Management, and the amendments of Fisheries
Law immediately after the reforms and the declaration on CFi Guideline. The second factor
according to 93% of the total respondents and all 16 FGDs is the benefit of being a memberof the CFi. Being a CFi member and small-scale fisher, they were given more access to thefishing ground, harvesting more fish for consumption and income that improve their socioeconomic status, recognition of their value in participating in a co-management concept ofgovernance, capacity building and working together as one and trusting each other. Asidefrom these influencing factors, challenges and lessons learnt were also documented for abrighter future of CFi co-management. These include the actions on the amendment of CFi
legal framework particularly on the CFi economic creation and financial support for afunctional and effective CFi co-management. This should include the expansion of CFi rights
and roles on economic activities and benefits of being CFi member, which needs to be clearly
defined in the Fisheries Law and CFi sub-decree amendment followed by the developmentof the CFi Guideline. The government, development partners and the private sector shouldⒸ ISERD

34

IJERD – International Journal of Environmental and Rural Development (2021) 12-2

financially and technically support the CFis to function and operate effectively in comanaging the fisheries resources development and sustainability.
Keywords fisheries policy reform, community fisheries (CFi), CFi legal framework,
benefits of CFi membership, fisheries management

INTRODUCTION
Cambodia is endowed with rich natural fisheries resources in both freshwater fisheries from the
Mekong Region and Tonle Sap Lake system, and the marine fisheries from the coastal region. Fishis one of the most important foods and necessities of life for a rice-fish-eating population, andpotentially an important contributor to improve food security and nutritional status of the population.
Therefore, the management of the fisheries resources is an important responsibility that requires
development and improvement overtime according to its context, demands and needs that will occur.
As the situation became unfavorable for subsistence farmers-fishers to get equal benefits from thenatural fisheries resources, the government decided to reform the fisheries management in October2000 by cancelling 56% of the fishing lots and providing to the public/fishers for communal use.
Finally, in 2012 the government cancelled all remaining fishing lots (industry/large fishing scale) in
the Great Lake as part of the deep reform of the government to sustain the fisheries resources andimprove the socio-economic development of the communities in the rural areas. To support thisreform, the government supports the small-scale fishers to organize Community Fisheries (CFi) to
implement fisheries co-management with the government to develop and sustain the fisheries
resources.
As a result of the fisheries policy reforms for almost two decades, the government was able toestablish 516 CFi around the country. Witnessing the impacts of the reforms, it raises the questionof what factors have driven the functionality and the effective operation of the CFi co-managementthat can be learned to improve CFi legal framework for the sustainability of the fisheries resource
management in Cambodia.
Table 1 List of CFi target study by province and region
No.
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
16

CFi Name
CFi Kaoh Kaev
CFi Kanlaeng Pe
CFi Roha Suong
CFi Phneat Koh Pongsath
CFi Chong Khneas
CFi Samaki Kampong Kou
CFi Samaki Akphyrak Stung Kombot
CFi Beung Krapet
CFi Rokakoy
CFi Chroy Check
CFi Boeung Chulen
CFi Put Sar Cham Pei
CFi Kok Thlok
CFi Trapeang Ropov
CFi Trapeang Sangke
CFi Tumnub Rolok

Province

RegionKampong Chhnang
Battambang
Bantheay Meanchey
Siem Reap

Tonle Sap Great
Lake

Kampong Thom
Tboung Khmom
Kampong Cham
KandalMekongTakeo
KampotPreah Sihanouk

METHODOLOGYⒸ ISERD

35

CoastalIJERD – International Journal of Environmental and Rural Development (2021) 12-2

Sixteen (16) CFis were purposely selected from the three regions (Tonle Sap, Mekong and Coastal
region) based on the geographical fisheries ecosystem in Cambodia. The CFIs were organized andestablished in these three regions after the implementation of the fisheries reforms as shown in Figure
1 and table 1. A total of 527 CFi members (169 women, 32%) as respondents was randomly selectedin the 16 CFi members’ list. Primary data was collected through a face-to-face interview with the
527 respondents using a structured questionnaire that was conducted in 2018. The 16 Focus Group
Discussion (FGD) from the 16 CFis was conducted in 2020 providing qualitative information to
support the quantitative data from individual interviews. The 16 FGDs were facilitated with the CFi
Committee (CFiC) members to get their views and perceptions about the factors driving CFi
functionality, effective operation and identifying the strengths, weaknesses, opportunities and threatsof each CFi using SWOT analysis. FGD data is mainly on qualitative analysis to substantiate thequantitative analysis with the multiple responses of CFi members on key indicators to understand theeffects and causes of factors driving the functionality and effective operation of CFi management
after the fisheries reforms in Cambodia.

Fig. 1 Study sites location
Table 2 Factors driving CFi functionality and effectiveness CFi management-

Factor*CFi legal framework’s support
CFi membership’s benefits
Financial and technical support
Collaboration and support and from local authorities
Collaboration and support from technical agencies
Collaboration and support from DP
CFiC ability and capacity
Participation of CFi members
Others (people willingness, support and work together…)

Frequency

Percent

505
488
475
466
443
433
339
321
303

96
93
90
88
84
82
64
61
57

* Multiple responses

RESULTS AND DISCUSSION
There were several key factors driving the functionality and effective operation of CFi comanagement reported by the 527 representatives of CFi members and 16 CFi Committees aspresented in Table 2. The factor with the highest percentage 96% of the total respondents is theprovision of CFi legal framework to the community fisheries. The second important factor mentionedⒸ ISERD

36

IJERD – International Journal of Environmental and Rural Development (2021) 12-2

with a total percentage of 93% of the CFi members respondents and all 16 Focus Group Discussion
from CFi Committee is the benefits that they received being a member of the CFis. Moreover, otherfactors presented in Table 2 below are same important parameters that interlinked with the otherfactors that contributed to the functionality and effective operation of CFi co- management of thefisheries as a whole.
The results of the 16 Focus Group Discussion with CFi Committee members expressed theirviews that CFi legal framework and CFi members’ benefit are the most key necessary factors driving
the functionality and effective operation of CFi in their co-management of the fisheries resources.
While the other factors are of equal importance contributing to the functionality and effective
operation of CFi co-management of fisheries resources. The study explored the reasons for these two
factors as presented in Tables 3-4 below.
Table 3 Reason of CFi legal framework driven factor the CFi effective management-

Reason*Legal guidance for CFi establishment
Official and legal recognition of CFi
Legal guidance for CFi function and management
Official support from the government and development partners
Fisher’s rights and responsibility in the natural fisheries resourcesmanagement
Increased support and collaboration more than before CFi
establishment
Others (CFi empowerment, commitment and resource ownership)

Frequency

Percent

521
518
502
467
436

99
97
95
89
83

328

62

311

59

* Multiple responses

Table 3 presented the reasons why CFi legal framework is an effective driver for the CFi
operation and co-management. Around 99% of all CFi member respondents and all CFiC Focus
Group Discussion expressed that the legal framework had guided them to establish their CFi
organization, this includes the Royal Decree on the Establishment of the Community Fisheries (NorSor/Ror Kor Tor/0505/240, 2005) for them to work closely with the government in managing anddeveloping the fisheries resources. According to 97% of the CFi member respondents, the legal
framework had been an instrument for them to be recognized by other stakeholders including
development partners as an official and legal entity that co-managing the development of the fisheries
resources. Around 95% of the CFi member respondents mentioned that the legal framework hadprovided a clear roles and responsibilities to the CFs including their mandates to function effectively
in co-managing with the government the development and sustainability of the fisheries resource
sustainability. The role and responsibility of the CFi are clearly indicated in the Sub-decree on CFi
management (No. 25 OrNor Kror. BorKor, 2007). These three top reasons are inter-related and themain provision of the official and legal recognition of the Community Fisheries organization in theform of co-management approach that are financially and technically supported by the governmentand development partners according to 89% of CFi member respondents. Based on these legal
frameworks the CFis were provided and promoted fisher groups’ tenure rights, user rights, and rights
to protect and co-manage their natural fisheries resources to develop and sustain in an effective way.
The CFis legal recognition is also indicated in the amended Fisheries Law of 2006 as a result of thefirst fisheries reform in 2000, which never before in the history of fisheries resources managementin the country. In article 59 of Chapter 11 on Community Fisheries of the Fisheries Law, stated that“all Cambodian citizens have the rights to form Community Fisheries in their own areas on a
voluntary basis to take part in the sustainable management, conservation, development and use of
the fishery resource”. Therefore, the legal framework is an important legislation and key factor at thegrass-root level and people can officially and legally form their Community Fisheries organizationthat legally provides their rights and responsibility in protecting and co-managing their naturalⒸ ISERD

37

IJERD – International Journal of Environmental and Rural Development (2021) 12-2

fisheries resources in an effective way. Moreover, this local community fisheries organizations havereceived substantial support and cooperation with the local authorities from all levels, development
partners and private sector more than before when they do not have their CFi organization. Finally,
the respondents also mentioned that the legal framework has empowered them socially andeconomically including mainstreaming of gender and fisheries resources ownership.
Table 4 shows the reasons why being a CFi membership benefits is a driving factor for thefunctionality and effective operation of the CFi in a co-management approach. According to 97% of
the total CFi member respondents the benefits of being a CFi member is about building trust among
each other, among villagers with other villagers, among fishers with other fishers, in particular forsmall-scale/family and poor fisher families. Another reason is the unification among the community
fishers and working as a group and organizations and recognizing equity and rights to their fisheries
resources, especially for the family scale fishers in the CFi fishing areas. According to 89% of theCFi member respondents after becoming members of the CFi they were provided more access to theCFi fishing ground that was previously fishing lots.
Table 4 Reason of CFi membership benefits driven factor the CFi effective management-

Reason*Building trust to each other (villagers and villagers) as united
Being recognized as group work (work together)
Equal rights for fishing by family scale
Can do fishing (more access to fishing ground) more than
beforeTheir membership and participation being recognized andvalued (resources ownership)
Gaining knowledge on fisheries resource protection andmanagement
Building empowerment and capacity (from meeting,workshop…)
Voices and demands can be addressed
Received more support for social welfare and poverty
alleviation
Others (more safety than before, no stolen, no violence…)

Frequency

Percent

518
502
480
467

97
95
91
89

436

83

388

74

353

67

321
313

61
59

301

57

* Multiple responses

Other benefits of being a CFi members include; the official recognition and value from otherstakeholders, the CFi builds trust and foster cooperation among the community which improve socialand economic development within the community, the CFi members gain knowledge on how toprotect and manage their natural fisheries resources in the effective and sustainable way, empoweredand built capacity of individual member and fisher group through participating in meetings,
workshops and trainings as well as other events taken place in the CFis area, the government andother stakeholders heard their voices and demands, and noted and addressed, being member , theyreceive more support for social welfare and help to alleviate their family poverty, and finally theirliving conditions have improved including security, violence, gender, and child labor were taken
into high consideration in the CFi.
However, there are still challenges that the CFis are facing as presented in Table 5, these include
generation of income or finance that will support the CFi operation especially the co-management
activities for the development of the fisheries resources. The CFi respondents expressed that the CFi
legal framework should have a section that articulates the possible sources of income for CFi in orderto generate their own income or finance in a collective way to effectively function and operate theiractivities for the conservation of the fisheries resources and help their CFi members on their social
welfare and poverty alleviation. Another challenge that was ranked high is the limited benefits ofsome CFi members regarding their rights for fishing in the CFi fishing areas because outsiders couldⒸ ISERD

38

IJERD – International Journal of Environmental and Rural Development (2021) 12-2

still encroach and fish in CFi fishing areas. They suggested that the CFi legal framework should
consider defining the differences between the fishing rights of the CFi members and outsiders thensupport the implementation of control and surveillance of these outsiders. They further suggest thatCFi members should have all the rights in doing fishing freely in the CFi fishing area, while non-CFi
members and outsiders should pay fishing fee according to the legal fishing gears used, which need
to be defined clearly and effectively applied based on the CFi by-law and regulation. Other key
challenges are also important areas for improvement, which require actions accordingly.
Table 5 Key challenges facing the CFi effective management-

Key challenges**
Lacking of CFi self-financial support and generation
Still limited benefits for being CFi members regarding with rights for fishing,
everyone can do small-scale fishing in CFi area
Limited financial support for CFi operation and functioning from the state anddevelopment partners
5 years of CFi Area Agreement is short, which could not enough to produce
tangible imparts of CFi development and management
Poor enforcement of CFi by-laws and internal rules by members and nonmembers in CFi villages
Poor implementation of CFi Area Management Plan due to budget lacked
CFi Committee (CFi leader team) capacity is still limited, leading to take poor
rules and responsibilities, and affectively poor CFi function and management
Still limitation support from local authorities
Limitation of technical support and follow up by technical agencies
Local people’s awareness on CFi legislation/legal framework is still limited

Ranking
1
2
3
4
5
6
7
8
9
10

** Results of FGD

CONCLUSION
Community Fisheries is a voluntary fisher organization in Cambodia, which is officially establishedand legally recognized by the state with the provision of suitable legal framework, which never before
in the history of fisheries management in Cambodia. It is a prime objective and achievement of theGovernments’ fisheries reforms, in 2000 and in 2012, to ensure that the local fisher communities andsmall-scale fishers can obtain access to the fisheries resources for food, livelihood and poverty
alleviation. The achievements and results produced after the fisheries reforms are due to the supportof the legal framework for CFi that was provided at the right time and direction. Through these CFi
legal frameworks, the small-scale and poor fishers are receiving benefits and rights to share theirroles and responsibilities for the co-management of their natural fisheries resources for development
and sustainability. These are the most important factors that guide and drive the functionality andeffective operation of the CFis. However, there are still key areas that are facing challenges for the
CFis to be more functional and effective in co-management of the fisheries resources in the long run,which included the improvement of CFi legal framework. The CFi respondents recommended theimprovement of the legal framework to consider the provision of guiding the CFi to generate income
to self-finance their activities, suitable fisheries related livelihoods, and harvesting their resources.
Finally, the CFis recommended to define clearly the rights of the CFi members and nonmembers/outsiders in fishing in the CFi fishing areas. They suggest that they should be given higher
benefits for being a CFi members as well as CFi committee members as prime incentives for their
participation and efforts to actively protect and co-manage the natural fisheries resources
development in an effective and sustainable manner.
ACKNOWLEDGEMENTⒸ ISERD

39

IJERD – International Journal of Environmental and Rural Development (2021) 12-2

It is gratefully acknowledged the useful financial support from FAO HQ Rome for undertaking theimportant study and assessment on the impacts of CFi management for securing small-scale fisheries
in Cambodia. The study was a participative approach, undertaken by active staff of the Community
Fisheries Development Department (CFDD) of the Fisheries Administration (FiA) of the Royal
Government of Cambodia, are gratefully acknowledged and appreciated.
REFERENCESCBNRM Learning Institute. 2009. Trend, problems faced and innovation: Community based natural resourcesmanagement in Cambodia. Cambodia.
CFDD/FiA. 2017. The effectiveness of community fisheries management in Cambodia. Cambodia.
FiA. 2008. The compilation of legal instruments related to community fisheries in the Kingdom of Cambodia.
Fisheries Administration, Cambodia.
FiA. 2019. The strategic planning framework for fisheries 2010-2019: Background information. Fisheries
Administration, Volume 2, Cambodia.
FiA and FAO. 2013. Participatory assessment of community fisheries in Cambodia. Fisheries Administration,
Cambodia.
FiA and FAO. 2018. Community fisheries of Cambodia: Harbingers of the voluntary guidelines for securing
sustainable small-scale fisheries in the context of food security and poverty eradication. Analysis from a
Participatory Assessment, Fisheries Administration and FAO, Cambodia.
FiA, IDRC and CBNRM. 2006. Key factors affected the achievement in Community Fisheries Management.
In Nao, T. and Pol, S., History of Fisheries Management in the Kingdom of Cambodia, Cambodia.
Ngor, P., Suy, S., Heng, K., Thor, S. and Thownsley, P. 2010. Pilot participatory policy impact assessment:
Fisheries policy related to Community Fisheries development. Cambodia.

Ⓒ ISERD

40