Gender Issues in Fisheries

A look into gender issues in Solomon Islands Solomon Island’s fisheries

A Report Prepared for the NZAID Fisheries Review 2009

Ruth Maetala
May 2009
LIST OF ACRONYMS

ANZ Australia and New Zealand Bank

BSP Bank South Pacific
CBOs Community Based Organisations
FADs Fish Aggregating Devices
FFA Pacific Islands Forum Fisheries Agency
GAD Gender and Development
KTC Kolombangara Timber Company
PIFS Pacific Islands Forum Secretariat
HIV/AIDS Human Immunodeficiency Virus/Acquired Immunodeficiency Syndrome
MFNR Ministry for Fisheries and Natural Resources
MPA Marine Protected Areas
MWYCA Ministry for Women Youth and Children Affairs
NGO Non Government Organisation
RDS Rural Development Scheme
STI Sexually Transmitted Infections
SINCW Solomon Islands National Council of Women
SPC Secretariat of the Pacific Community
SPC CETC Secretariat of the Pacific Community, Community Education Training Centre
STD Sexually Transmitted Disease
SOLTAI Solomon Taiyo Ltd, now Soltai Ltd
NFD National Fisheries Development
UNFPA United Nations Population Fund
USA United States of America
USP University of the South Pacific
WBC Westpac Banking Corporation
WF World Fish
WDD Women’s Development Division
WID Women in Development
WWF World Wide Fund
1.0 Gender Equality in Fisheries in Solomon Islands

The concept of gender equality raises many questions in the Solomon Islands society.
People are often confused by the concept of women and development (WID) approach
and the gender and development (GAD) approach. Therefore, for the purpose of
consistency with practice, this report uses these concepts interchangeably. Gender
recognizes the roles that both men and women play in society therefore while this paper
recognizes the need for singling out women in specific cases will summarise areas of
consensus in general.

The UNFPA website summarises gender equality in a society to mean men and women
enjoy the same opportunities, outcomes, rights and obligations in all aspects of life. Further
the Convention on the Elimination of All forms of Discrimination against Women (CEDAW)
often serves as the basis for global promotion of gender equality taking into account that
while discrimination may exist, substantive equability between men and women exists when
both sexes are able to have shared decision making responsibilities where the distribution of
power and influence are shared; where both have access to equal opportunities for financial
independence through work or through setting up of businesses and enjoying equal access to
education including the opportunity to develop personal ambitions. In the context of Solomon
Islands, however, while the definition of gender equality recognises and acknowledges global
definitions, at the local context it is often misunderstood and misused thus needing a wider
awareness and understanding of the concept in general.

Decision making is a shared responsibility for many years in Solomon Islands society and the
gender roles of men and women are clear. However, global push for gender equality is now
currently used by women organizations as a backdrop to gender mainstreaming programs.
Our research found that because of cultural shifts towards global trends, gender roles
becomes a challenge in the Solomon Islands society. As a result attitudes towards women
participation in decision making is often challenged at length.

The goal of gender equality in the fisheries sector in Solomon Islands requires identifying the
roles of men and women; constraints to women’s participation. Sustainable fisheries
development can only be achieved and measured with the active participation of all members
in the community. But it should be noted that one size does not fit all.

It is evident from this study that from community to community there are many differences in
gender roles in fisheries but there are also notable similarities. This study while providing
specific examples will summarise areas of consensus. Where information from Noro is
limited, this research will draw from regional studies for lessons learnt.
2.0 Gender Roles in Fisheries in Solomon Islands

Regional studies found that across the Pacific shows that men tend to be involved in all
activities from harvesting through to support services. As also eluded by Tuara (2006) women
on the other hand are involved in all activities in fisheries and marine resources development
but their involvement is limited in most cases to subsistence harvesting 1. A gender analysis of
men and women’s roles in fisheries is tabulated below. This analysis includes a ‘snap’ gender
analysis of the Tuna Industry at Noro.

Table 1: A summary of the roles of men and women in the fisheries sector in Solomon Islands

Activity Men Women

Harvesting *Subsistence fishers *Subsistence fishers
*Gill Net and Bomb fishers *Bait fishers2
*Crew on NFD vessels *Boat owners
* Board Members * 1 woman crew on NFD
*Managers vessel (Soltai 105)
*Surveillance and *Surveillance and
compliance officers compliance officers
*Observers/port samplers *Port samplers
*Engineers *Stores control
*Boat repairs and *Shore based support staff
maintenance mainly in administration and
*Bait fishers office work
*Boat owners *Customary resource owners
*Customary resource owners (bait fish royalties)3
(bait fish royalties) *Makers and menders of
*Fishing gear maintenance fishing gear
and construction *Fish handling to shore
*Fish handling to shore
*Stevedores
*Shore based support staff

1
Tuara-Demke, Patricia, 2006, Gender Issues in the Pacific Islands Tuna Industry, Pacific Islands Forum
Secretariat (PIFS) and South Pacific Communities (SPC)
2
Elizabeth Tara, Gizo, Personal Communication, May 2009
3
See also Patricia Tuara 2006:
Processing *Processors for local markets
*Cannery and loining plant *Cannery and loining plant
workers workers
*Cool storage workers *Administrative staff
*Transport workers (forklift including secretaries and
operators, weigh masters etc) accountants
* Administrative staff * 1 Quality control Manager
including accountants at Noro
*Quality control and *Food service providers at
laboratory workers cannery
*Engineers and plant * Support staff such as
maintenance workers cleaners
(carpenters, plumbers,
labourers, etc)
*Graders
*Support staff (cleaners,
security, maintenance)

Marketing/Distribution *Local marketing and *Local marketing and

distribution distribution
*Transportation *Drivers 4
*Drivers *Sales clerks
*Warehouse workers *Warehouse workers
*Engineers
*International marketing and
distribution
*Economists/Accountants
*Market research and
promotion

Secondary activities *Public sector workers ►Public sector workers

linked to  Fisheries License
Holders

Source: Patricia Tuara (2006)

2.0.1 Women’s role in the Tuna Industry

An assessment of women’s role in the Tuna Industry by Tuara (2006) showed that women
play an important role in processing. Women are responsible for subsistence processing for
the home as well as in the Noro cannery.

Women in other countries like Tuvalu, Kiribati, Marshall Islands and Papua New Guinea are
found to be engaged in fish processing for sale at the local market. Sometimes, they are
engaged in salting, drying and producing tuna jerky.
4
Aida Gasimata, Personal Communication May 2009, Hambia Women’s Fisheries Project, Munda
It is however, the practice in Solomon Islands for women to take over the responsibility of
cleaning, gutting and processing fish which include salting and drying and baking fish for
sale at local markets. Where local markets are distanced and are not accessible men usually
transport the fish to sell at the local markets. In Shortland Islands for example, women take
over the responsibility when men arrive with the fish but after fish is dried by women, men
take dried or baked fish to the Buka market in Bougainville which is much closer than the
market in Gizo5.

Solomon Islands has one commercial cannery at present. Soltai is responsible for freezing,
smoking and canning as well as fish meal production. It employs a total workforce of about
2,298 in 2006 (SPC). However, Soltai has currently changed its management therefore
reduced the number of workers through a redundancy exercise. However, more recently
about 500 workers were employed in 2009. 80% of the new employees are women. In other
studies ( Tuara and Neilson, 2000) it is found that while Soltai is a major employer of factory
workers in Solomon Islands, most workers come from Western Province.

2.1 KEY FINDINGS

Based on the data collected in the period 7th -26th May 2009, the following assessments
and observations were made based on the key findings. While there may be national
gender studies have been done by South Pacific Commission (SPC), Forum Fisheries
Agency (FFA) and Pacific Islands Forum Secretariat (PIFS), our research confirms that
more rural women living on the coastal areas in Solomon Islands participate more and
more in inshore fishing and marine resource farming whereas few women are involved in
offshore fisheries. Both inshore and offshore fisheries are male dominated thus the need
to understand opportunities for gender mainstreaming in both are equally important.

2.1.1 Women and Subsistence Fishing

At the community level, women are more involved in subsistence fishing. Our research
found that the role of women at the community level in the fisheries sector leans more
towards harvesting roles and marketing roles. For example, men from Nusa Baru at Gizo
Western Province fish and have knowledge of best fishing sites so they engage in fish
harvesting roles but they also provide transportation to and from the Gizo market because
they too own OBM canoes. However, women would sell fish at the market. This is
common amongst the Gilbertese oriented communities. With indigenous Westerners, both
men and women are fish harvesters.

In terms of the decisions made around benefits from fishing, women fishers in Gizo do
more marketing with less power to make decisions around how the sales from fish is
being distributed. In Munda on the other hand, our research showed that fisherwomen
have more access to the financial benefits of fish sales but lack the capacity to manage
their income and sales for every fish sale is not recorded.

5
Personal Communication Robert Panjaboe, Gizo, 25/5/2009
Further, women in Gizo, Munda and Roviana Lagoon are mainly subsistence fishers and
some clam farmers. There are three women clam farmers amongst 17 clam farmers under
the World Fish Project. However, in the industry in Noro for instance 80% of 500
employees at the Cannery are women6. In processing section in Noro, 100% workers are
women.

2.1.2 Women and Offshore Fishing

At the moment only one woman is working offshore from the boat Soltai 105. While
there are few women who are working in offshore fisheries, there are many other
secondary roles that women play in offshore fisheries. For example, there are three
women who are currently employed by the Competent Authority within the Ministry of
Health. This unit is headed by a woman. Their role is to inspect Soltai and NFD boats to
comply with European Union regulations.

The NFD boats do not have a gender policy but they encourage and promote family
atmosphere on board. Wives of sea men when on board continue to maintain a
reproductive and mother role which in many cases maintains peace on board ships as
well. There are no links between NFD and the National Training Unit (NTU) of the
Ministry of Education and Human Resources Development (MEHRD). As a result, there
are more unskilled workers on board ships.

2.1.2.1 Female Observers

In 1995/1996 SPC sent female observers on board ships. Presently there are two female
observers on fishing vessels. These observers are jointly trained by SPC, NZAID and the
MFNR. Recently the MFNR employed another 46 observers but only 4 are female. They
are Grace Kumuli, Irena Geseni, Shirley Wini and Linslyn Sapamana. After undergoing
training at the ministry, observers undertake further training at the School of Marine
Studies at the SI College of Higher Education in Sea Safety. Women observers have the
same roles as male observers thus expected to produce the same reports as other male
colleagues. This is tough for women because they remain onboard fishing vessels for the
same length of time assigned for one trip.

2.1.2.2 Women in Advisory Committees

The Solomon Islands National Council for Women (SINCW) is represented on the
Ministry of Fisheries Advisory Committee however SINCW’s role was limited to make
decisions regarding women’s involvement in harvesting/protection in economic zones,
protection for women on boats, providing letter of support for fisheries proposals.

2.1.3 Women and Fish Processing

6
Personal Communication, Thomas Dorku, General Manager of Soltai Tuna Industry, Noro 25/5/09
At the community level, women are only involved in the processing of fish for sales at
the market. There is no training in fish handling for village women, no training in drying
or other preservation methods and there is no training for women in alternative
development innovations which will promote self reliance amongst community members
and not only women7.

In the tuna industry, women are the main workers in the Solati factory at Noro. They
make about 80% of workers in the factory and 100% in the processing section. During
the research it was not clear whether women were given specific training to support their
career in the fish industry. What was evident though was there were no avenues for
women to advance in any fisheries careers besides being in the processing plant. Women
in the processing plant benefit from the company’s accident insurance plan, provision of
uniforms and protective uniforms but women indicated their working hours during a big
harvest is usually long, tiring and a risk to their health. For instance, some workers
identified knee problems may arise and there are questions as to whether in its current
weak state the Soltai would be able to provide other health benefits for its workers. In
terms of housing, the company provides basic housing and hostel housing for single
women. Most people live in the nearby villages and are picked up every morning and
dropped off every after work. This could be a very expensive exercise.

2.1.4 Access to land is access to marine resources

One of the key findings of our research was the fact that access to land is access to reefs
and marine resources that are attached to land ownership.

Women in Gizo of Gilbertese orient and other settlers have experienced that the impact of
the Tsunami of April 3, 2007 has had such an impact on their livelihoods. Where
communities were heavily dependent on sea products for cash generation, the Tsunami
experience had brought about another dimension to the opportunities and constraints that
women are presently facing.

Oxfam International is currently working with women in the Gizo area to look into
gender issues in accessing land. WWF is also working with women and communities in
and around Gizo to look into issues women face in fisheries. In Roviana and Vona vona
lagoon the Roviana Conservation Foundation (RCF) is presently working with
communities in Marine Protected Areas (MPA).

Women’s access to land is therefore critical in any fisheries project because if women
have easy access to land they will have easy access when it comes to harvesting or
conserving marine resources.

2.1.4.1 Sales of land for Cash

In the Roviana area, women raised the concern about the sale of land to logging
companies and the environmental impact of logging. There is competition for land and
7
Personal Communication, Dr. Anne Marie Swharzts?? World Fish, Honiara
reef space to encourage women in protecting or selling that resource. The Kalena Timber
Company (KTC) was reported to have various socio-economic impacts on communities
relating to the use of land. For instance, communities identified issues of teenage
pregnancies, prostitution, pre-matured marriages for native women to company owners,
shortage of cash for daily existence and other social issues are directly or indirectly
linked with the sale of land for cash. Cash therefore becomes a major contributing factor
to the decisions made with respect to decisions made on land and reefs including Marine
Protected Areas (MPA).

2.1.5 Financial Independence of Women

This is a key area the project might want to look closely into. Many of the fisheries
projects that failed fail because of the lack of women’s financial independence. What
issues and lessons can be drawn from current projects ran by women.

2.1.5.2 Access to loans and credit facilities

Often women have very little access to loans and credit facilities for the following
reasons:
i) Women do not have collateral or security
ii) Women in rural areas do not have a regular income record to show as
evidence to the banks.
iii) Access to loans and credit facilities is a big hassle for rural women because
they do not formally own property or land. Further, in most cases the level of
literacy could not accommodate areas needing interpretation when filling out
forms for bank loans.
iv) Women and rural people are disadvantaged by the limitations of banks to
provide services where the geographical spread presents a challenge through
the high cost of transportation and fuel.

Our research also found that while there may be projects designed for and in the name of
rural people for rural livelihoods, they are designed in such a way as to work through the
Banks providing services in the Provincial towns or centers.

The Australia and New Zealand Bank (ANZ) and the Bank South Pacific (BSP) jointly
manage a credit opportunity for rural business people. The Rural Development Scheme is
funded under the EU programme and managed by the ANZ, BSP and Westpac Bank
(WBC) however, women or rural people cannot access these facilities easily because
bank requirements and loan criteria still applies. Using land or reefs as collateral can be
very difficult and imposes much constraint to rural people’s application for a loan.
Further, alienated land can only be leased to individuals or customary land can be owned
by a tribe. Alienated land is only limited to those who are working in government owned
centers and or where there are settlements for migrant communities like in Titiana and
some parts of Gizo. There can be also challenges to land and relocation of communities
that will certainly have an impact on who has access to loans or who has access to fishing
sites. Additionally, it can also be seen as a challenge where benefits for women are
limited to income generated at the local markets. While schemes like the RDS have good
intentions, the project has requirements and the bank also imposes its criteria when
people apply.

A gender analysis of the rate of access to loans based on the ANZ criteria for Personal
Loans demonstrates the constraints women have when applying for a loan and especially
when they are living in rural areas or communities where they are entitled to individual
land ownership rights.

Table 2: Gender analysis on the Access to ANZ Personal Loan Criteria8

LOAN CRITERIA WOMEN’S ACCESS MEN’S ACCESS

Latest 3 pay slips Women’s work is not Only men in formal
counted as formal employment but not
employment subsistence fishermen
Typed letter from employer: Women’s work is in the As in criteria 1
Employment Status informal sector/women find
it difficult to prove
employment
Statement of NPF contributions Most women working in the As in criteria 1
formal sector (Noro) but not
subsistence fisher women
Statement of your loan account Most times first three As in criteria 1
with financial/credit institutions criteria are not met by
women so they cannot
qualify for the last one

2.1.5.1 Hambia Women’s Fishing Project, Munda

A case in Munda; the Hambia9 Women’s Project is made up of 10 women living in the
Dunde Village in Munda. Their project was supported initially by the Member of
Parliament through the purchase of an OBM canoe and engine. Women in this project
have the skill to fish and were successfully applying the traditional methods of fishing
including line fishing and spear diving. They have the knowledge of reefs that yield a
sufficient day’s harvest. This was the women’s initiative, so the sense of ownership was
strong. They had access to the Munda market and make decisions regarding who and how
their income is spent. However, they had a problem and it is with money management
and daily sales recording. This shows the need to support efforts promoting self reliance
in inshore fisheries.

2.1.2 Women in Decision Making

8
ANZ loan criteria
9
Morning Star
Women’s views are crucial to any decision making at the community level. It must me
understood from the outset that women make important decisions which influence any
community development activity.

2.1.2.1 Making decisions at the community level

At the community level, women are decision makers. They make plans and contribute to
family decisions. At the community level, it is a major challenge when women’s roles
conflict with men’s roles. Women’s community roles can however transpire naturally at
the national level if nurtured properly. Developing women leaders in environments which
women’s roles are undermined by discriminatory attitudes and practices may also
undermine the success of any community based projects.

(i) The case of Roviana Conservation Foundation (RCF)

Our research found a notable case in the Roviana lagoon, Western Province. In every
community enforcing regulated practice regarding Marine Protected Areas (MPA)
there is a management committee. These committees are called Resource
Management Committee (RMC). In every committee, there are fifteen members.
Three are women. Therefore, women make up 20% of the RMC. The participation of
women at this committee level ensures that women are making decisions on:
 Protected fishing grounds
 Designated fishing and fuel areas
 Permanent protected reefs and mangroves
 Sustainable harvesting
 Legislating community initiated by laws for poachers10

However, women’s need for survival challenges women at a great length. Fishing is
one source of income and if reefs and mangroves are restricted, women tend to look
for other sources of income like baking, sewing, gardening and weaving. While
women gain skills through church affiliations, their biggest constraint is the fact that
there are no market outlets for sale of crafts and other hand made products.
Additionally, some areas in Roviana are faced with issues which come with logging.
The Kolombangara Timber Company (KTC) camp near Beulah school experience
young girls leaving school at an early age in search for a foreign Asian partner,
pollution increased and affected MPAs, Trustees hold on to royalties and as a result
rightful people do not receive royalty payments.

2.1.2.2 National Decision Making

Solomon Islands are one of ten countries with no women in parliament. A Diagnostic
study done in 2006 highlighted some of the barriers to getting women in parliament one
of which impacts women most is culture which is ingrained in attitudes of men and
women towards women’s participation in politics. A second major reason for women’s
10
Marianna Hughes, Personal Communication, Nusahope, 22/5/2009
lack of participation in parliament in the Solomon Islands according to this study too is
lack of financial support for running women’s campaigns. 11 These findings support our
research because the gap in decision making at the community and national levels are yet
to be reconciled. Further, women’s participation in fishery activities at the national level
is almost obscure because of two reasons: (i) women are marginalized in fishery activities
either because of cultural constraints or harsh nature of fishing especially off shore
fisheries and (ii) women lack the finances to start fishing projects and sustain them after
six months of establishing a fishery project.12

The MFNR has been in the past led by two women Permanent Secretaries. It is possible
that women could make a difference at the decision making level of the Ministry.
However, one must note too that national decision making should be inclusive of
provincial operations. The Fisheries office at Gizo for example needs strengthening.
Although there are five fisheries centers around the province, only two are in operation at
the moment. There are no female officers at Gizo because of lack of housing 13. The
national fisheries office needs to find ways to create an enabling environment for gender
equity. Any gender mainstreaming strategies in fishery should look at the most cost
effective way to implement gender sensitive programs.

Financially, the province’s budget for fisheries is substantial but not sufficient to meet the
needs present in the province. The Western Provincial Budget estimate for 2009/2010 is
summarized below:

Table 3: Summary of Recurrent Revenue for selected heads 2007-2010

INTERNAL ACTUALS ACTUALS

REVENUE 2007/2008 2008/2009
2009/2010
Admin 195,400,00 1,250,436.10 3,132,119.20
Transport/Works/Infrastructure 330,000.00 478,199.03 300,623.63
Fisheries and Marine 90,920.00 12,525.00 138,060.00
Rural Development 5,500.00 - -
Women Youth and Sports 19,000.00 1,100.00 1,200.00
Source: Fisheries Office, Gizo

Although Fisheries and Marine Resources Development receives a larger budget for
2009/2010 financial year, rural development and women youth and sports do not receive
priority attention in the provincial budget. The actual spending on women activities is
also questionable. With such budgets at the provincial government level, there is no
guarantee for gender mainstreaming programs unless, there is a coordinated effort
between the province and Non Government Organisations (NGO) for the furtherance of
gender sensitized programs.

11
Diagnostic Study 2006
12
Joanna Saru, Personal Communication 23/5/2009
13
Fisheries Officer, Gizo Fisheries Office, Personal Communication 24/5/2009
2.1.3 Fishery Policy and legislation

The Review of the Fisheries Act and the promotion of the Community Based Fisheries
Management policy may be the starting point for gender mainstreaming. Within the
Ministry responsible for fishery the Provincial development and extension department are
responsible for the promotion of the CBFM. Because the CBM promotes the leadership
of communities to take care of their own fish activities there is also need to strengthen the
role of women in community decision making and build the capacity of rural or
community based women’s groups to fully participate in fishery processes. The case of
RCF is only one such organ which can facilitate community based management of marine
resources and conservation programs but there are also emerging women groups that may
have effective structures to accommodate and implement programs targeting the needs of
women in fisheries and marine resources management. These organizations should be
further researched to provide a more holistic perspective of the necessary outcomes.
However, women’s present participation in any fishery or marine resource policy and
legislative development processes are minimal.

2.1.3.1 The Infrastructure

For any successful gender mainstreaming strategy the infrastructure to ensure that must
be in place. Our research will highlight the need to strengthen the MFNR and the Women
in Development Division (WDD) of the Ministry for Women Youth and Children Affairs
(MWYCA).

MFNR
The Ministry for Fishery and Natural Resources (MFNR) is the government arm solely
responsible for the development and implementation of government fishery policy and
legislation. Within its setup, there are four main divisions:

 Inshore fisheries: Provincial and Extension Division; Research Division

 Offshore Fisheries: Licensing, Surveillance and Enforcement; statistics
 Administration
 Accounts

Staffing
Although there are more than 50 employees in the ministry there are only 12 female
officers and 6 female observers. There are two women in the Provincial and Extension
Division, one female in the research division, two females in Licensing and Surveillance,
two females in Statistics, three women in administration and two females in the Accounts
division.

Most of these women do not have a formal qualification but attained seniority through
many years of experience.

Women in Fisheries Project

This is an international project for women in fishery which has been implemented
through the Ministry’s Provincial Development and Extension Division since the 80s. To
date, it has never been implemented as present officers withheld information. There is no
present plan for women in fishery.

MWYCA
Within the MWYCA are three main divisions: women, youth and children. The division
mainly responsible for women and gender related development is the Women in
Development Division (WDD). This division has been in existence since the 1960s as the
women’s interest office but later became WDD. WDD is the focal point for women in
Solomon Islands. Its vision is to empower women to constructively participate as equal
partners in the development of Solomon Islands. Further its mission is to facilitate,
coordinate and implement activities that lead to increased capacities in women and to
provide opportunities that empower women’s full participation in the country’s
development.14

One of WDD’s main functions is its policy, advisory and coordination role. In this regard,
WDD is responsible for formulating, prioritizing and coordinating specific programs for
the implementation of the Solomon Islands National Women’s Policy and other
government commitment such as the Global Platform for Action (GPA), the Pacific
Platform for Action (PPA) and the Convention on the elimination of all forms of
discrimination against women (CEDAW). In this role, consultation and links with other
sectors is crucial for a substantive result. This has not been possible due to a number of
problems identified within the division:

 Financial constraint: the lack of finance to implement gender mainstreaming

programs and much delay in the bureaucratic process to source funding for
women programs resulting in lengthy delays and inconsistency in delivering
programs at the provincial level.
 Lack of capacity and technical knowledge to design and develop policies.
 No established links with other ministries to ensure a strong gender m
mainstreaming program.
 Weak logistic support at ministry level to staff. Basic logistic items like toners,
paper and stationary are on a constant and high demand for usage but yet are in
constant shortage. Lack of such basic items often undermines the division’s
capacity to successfully implement transfer of simple technology, skills and
programs15.

Staffing

14
Women in Development Division Mission and Vision Statement, 22/5/2009
15
Personal Communication with Janet Tuhaika, Director, Women in Development Division 22/5/2009
Presently the Divisions staff is only seven females: Director, Gender/CEDAW Officer,
Training Supervisor and four provincial desk officers who work in partnership with
provincial women desk officers in the ten provinces. Although WDD increased its
staffing since 2008, capacity building is still paramount for the successful implementation
of women in development (WID) and gender and development (GAD) strategies and
programs.

2.1.3.2 National, Regional and International Policy and Legislative Commitments

Several national commitments to GAD activities stemmed from Solomon Islands
Government (SIG) commitment to regional and international policies and legislations.
A brief look into the global and regional context and background to the push for
advancement of women and gender and development approaches is summarized for our
understanding of SIG’s gender policy development.

At the 1st UN World Conference on women (WCW), Mexico several factors were evident
forcing governments into commitment at the global scene. The conference urged UN
General Assembly (UNGA) to proclaim “Decade for Women” (1976-1985). The UNGA
called for a World Plan of Action to set minimum targets, to be met by 1980, that focused
on securing equal access for women to resources such as education, employment
opportunities, political participation, health services, housing, nutrition and family
planning. This caused a shift in perception of women’s involvement in development. By
end of decade, 127 members had set up machinery for women’s advancement. Following
that at the UNGA in 1979 the UN adopted the Convention on the Elimination of all forms
of Discrimination against Women (CEDAW) which is accepted as the Bill of Rights for
Women (BRW). Later in 1980 in Copenhagen at the 2nd WCW a programme of action
was proposed and passed to address the following issues:
• Lack of sufficient involvement of men in improving women's role in society;
• Insufficient political will;
• Lack of recognition of the value of women's contributions to society;
• Lack of attention to the particular needs of women in planning;
• A shortage of women in decision-making positions;
• Insufficient services to support the role of women in national life, such as co-
operatives, day-care centres and credit facilities;
• Overall lack of necessary financial resources;
• Lack of awareness among women about the opportunities available to them.
These issues were then brought again to the table at the 3rd WCW in 1985 in Nairobi
when 16,000 women adopted the Nairobi Forward Looking Strategies. This became the
blueprint for action until 2000. The issue of Violence against women brought to the
forefront for action.

After the Nairobi conference, a regional conference of Pacific women ministers was held
in 1994 in Noumea thus the Noumea declaration made by 22 Pacific Island countries and
territories adopted the PPA. At the conference a formal recognition of the importance of
women and agreed women’s development should be top priority for all Pacific Island
governments. A year later, at the 4th WCW in Beijing 50,000 women attended and
adopted the Beijing Platform for Action. Solomon Islands were represented at this
conference.
The main emphasis on “Mainstreaming” of gender approaches in policies and
programmes. Three years after the Beijing conference Solomon Islands developed its
own national women’s policy. This document highlighted thirteen areas of priority
concern for Solomon Islands women and one of these areas of focus is fisheries. Other
UN meetings provided an avenue for Solomon Islands to make global commitments for
the advancement of women. Leading up to the ratification to CEDAW in May 2002,
Solomon Islands was party to the 2000, UN Security Council Resolution 1325; the first
ever resolution specifically addresses the impact of war on women, and women's
contributions to conflict resolution and sustainable peace and 2000 in New York,
Millennium Declaration highlights the need for gender equality in its 3 rd millennium
development goal.
Later in Pacific Leaders had the vision to improve the lives of women in Pacific
countries so the held a meeting in Auckland in 2004 and adopted the Pacific Plan. A year
later Pacific leaders endorsed the Pacific Plan with a strategic objective to achieve
“Gender Equality.” The progress of regional and international commitments for gender
equality take further effect in Solomon Islands with the development of the AusAID
gender policy in 2007 with the goal to reduce poverty by advancing gender equality and
empowering women.

The MWYCA adopted some of AusAID’s principle in implementing its approaches and
programs with a vision to advance the status of women in these four key areas of concern
but realizing that the gender policy as an overarching principle, gender equality is
addressed through each of the aid program’s 4 themes with corresponding outcomes
– Accelerating economic growth – improved economic status of women.
– Fostering functioning and effective States – equal participation of women
in decision making and leadership including in fragile states and conflict
situations.
– Investing in people – improved and equitable health and education
outcomes for women, men, girls and boys.
While promoting regional cooperation, the AusAID gender policy focus is diverted to
improving the status of women in leadership economic empowerment and improvement
in health and education leaving out women’s participation in agriculture and fisheries 16 in
its main programme but doing it through other NGO programmes like International
Women’s Development Agency (IWDA)17.

At the time of our research the MWYCA is facilitating a review of the National Women’s
Machinery (NWM) and the National Women’s Policy (NWP). This project is jointly
funded by NZAID and AusAID to improve the infrastructure for the implementation of
policy and programmes addressing gender equality in Solomon Islands.

2.1.4 Training

16
Pauline Soaki, Gender Officer, AusAID 19/5/2009
17
Gabrielle Halcrow, IWDA
Training for women fishers is provided by South Pacific communities (SPC) in the past.
Solomon Islands benefited from these trainings but to what extent has women utilized the
skills acquired through such training. The impact of fishery training for women is not
known.

A case in point is that of two women: Mary and Grace. Mary was trained in fishery by
SPC and Grace was also trained by SPC in seaweed production. These women are trained
to carry out specific roles in providing training and production for women and marines
resources. To date, Mary and Grace has not implemented what was learnt from these
trainings. Perhaps, it was difficult to implement any follow up programs because those
who facilitated the training do not prepare to run in country training for women. This
should be looked into further when training for community women is encouraged.

2.1.5 Other Social Issues

At the fishery workshop held from 26-27th January 2009 at the Quality hotel some of the
issues that were raised as issues impacting lives of women were:
 Prostitution, including the attraction of under-age girls onto foreign fishing boats.
 Unwanted pregnancy and related social impacts
 Marital and family breakdowns (due to prostitution and SI crew doing long
fishing trips).
 Increase in sexually transmitted infections (STIs)
 Some beneficial impacts eg. Employment opportunities (eg. Observers, factory,
government, fisheries mangers)
 Reality of additional cash income for poor households – both through income
from prostitution, providing transport to and from ships etc.18
While there are some temporal solutions suggested at the workshop, there is a need to
look seriously at long term strategies to counter a growing need for concerted efforts to
counter these social challenges.

2.1.5.1 Prostitution

The workshop facilitated at the Quality Inn in January 2009 pointed out the impact of the
fishing industry on women and the activities associated with fishery. We can also learn
some valuable lessons on prostitution from the Christian Care Center (CCC) Study
carried out in 2004 which pointed the importance of the issue and how all concerned
authorities and organizations could through coordinated efforts strengthen the
implementation of programs to address the issue of prostitution. According to the CCC
study (2004) it was found that prostitution on fishing boats is an issue needing immediate
attention because it breeds a whole lot of other socio-economic and health issues for
Solomon Islands. Similar Experiences have been found elsewhere in the Pacific. 19 One of
the main causes for this shift in Solomon Islands was mainly the need for economic
18
Ian Cartwright, 2009, Fisheries management in the Western and Central Pacific Fisheries Convention
Area: roles for NGOs and CBOs, Quality Inn, Honiara
19
Prostitution-and-fishing.html. Last Accessed 28/5/2009
independence. Girls are going on to transshipment boats, local fishing boats and boats
offshore the harbor. This however was found to generate and increase organized
prostitution as well as grow Sexually Transmitted Infections (STIs) amongst young
women. In Makira it was reported that there are many teen age pregnancies amongst
young women20.

2.1.6 Discussion
The Pacific Islands Forum Secretariat in 1998 declared that if men and women are not
equally involved in decision making at all levels, decisions may not be balanced and may
benefit one group or more than another.

The role of gender in fisheries requires identifying the roles of men and women despite of
the constraints they may be challenged by at all levels. Fisheries for starters have always
been male dominated. Offshore fishing for example, has harsh conditions restraining
women from participating in specific projects. The NFD pump boat project for example
is feasibly conducive for Solomon Islands environment and economy. Gender wise,
women need to be physically fit to be employed on board pump boasts not only to handle
line fishing but also to carry 80-100kg fish when off harvesting or offloading. The length
of stay at sea is 2 weeks and the necessary infrastructure for comfort on board is absent.
Every work on deck is done manually and working conditions may not be fitting for
women’s participation.

Decision making at the national or board level is still a man’s domain. The Soltai board
for example consists of five (5) men. There are no women members of the current Soltai
board. This year although Soltai employed about 500 new employees, 78 were made
redundant. There is need for a thorough study into the impact of redundancy at the plant
and the role of women in the tuna industry. Almost 60-70% employees at the processing
plant are women. Although social benefits like cooperatives have been established by the
industry for women21 the health impact of long and hard hours of standing in the plant22 is
questionable. There is need to influence policies to regulate the health of women and men
working in the factory. Although Soltai is acknowledged for its initiatives like accident
insurance, hostel accommodation for young girls, micro economic activities and income
generation, Soltai’s policies must be gender sensitized through its acceptance of the role
of women and men within the factory infrastructure.

The National Women’s Machinery responsible for advancing the status of women should
establish a link between its office within the MWYCA and the MFNR to ensure GAD
approach to fisheries development is taken into account. CEDAW (2002) for example
should be viewed as a fundamental check point for gender development approaches and
promoting the rights of women. Compliance to CEDAW terms may be a starting point for
gender mainstreaming but we should look beyond CEDAW and ask one and
20
CCC, 2004, Situation Analysis of the Commercial Exploitation of Children and Child Sexual Abuse in
the Solomon Islands
21
Thomas Dorku, General Manager, Noro Cannery 26/5/2009
22
Woman Worker, Noro Cannery 26/5/2009
contextualize the need for integration of both WID and GAD approaches in any fisheries
development.

Further, SIG ratified CEDAW some years after the development of the NWP (1998). It
means that from 1975 to 1998, there was 23 years of global contribution to women in
development. The NWP however, recognizes amongst its 12 critical areas of concern that
women’s role in agriculture, fishery and forestry is fundamental to the country’s
economic growth but 30 years after SIG received independence from Great Britain, it has
not yet seen the NWP materialized into programs targeting the need of women in these
areas.

Additionally, policy 4.4.5 of the NWP proposes that government take necessary steps to
document the subsistence use of forests and marine resources in Solomon Islands to
allow for incorporation of that value in any development plans. Our study however, found
that while there are glossy policies that may encourage gender equality, in practice
women in fisheries has never been given much attention. For example, women in Gizo
while enjoy the present harvest of sea weed do not have another market outside of Gizo.
Women need market outlets which is lacking presently. Further, the Coalition for
National Unity and Rural Advancement (CNURA) government policy for women
development encourages women to be equal partners in the political economic, social and
cultural development of Solomon Islands. In doing so, women are also encouraged to
participate in any economic development and training in non-welfare areas like law,
counseling, psychology and sociology. Finally, the MWYCA is mandated to implement
legislation embracing the functions of other Ministries to protect women and children in
line with the international standards and conventions23. Such policy gives an opportunity
to mainstream gender in programs implemented by other Ministries. Solomon Islands
policies for WID and GAD are aligned with international instruments but the MWYCA
has attempted contextualizing policies for the advancement for women but holding
government accountable to its international commitments. As already stated elsewhere in
this document, there is a need to strengthen the women’s machinery to effectively
implement gender mainstreaming programs. To do this, we need to look at ways to do
this as a unified effort and identify who will do what.

In terms of training for women in fisheries, NZAID could start with who’s already in the
fisheries sector. There are women in the fisheries sector, some in the women’s division
and others in the Ministry for Environment and Conservation (MEC). However, it is
important to note that there are also women in the communities with fisheries projects,
skills from regional trainings and women already in the harvesting and marketing sector.
Additionally, there are women who are involved in committees who make decisions for
the use of reefs and mangroves and MPA programs organized by other CBOs. These
efforts must be recognized and utilized to achieve maximum outcomes.

2.1.7 Recommendation
From the key findings this research makes the following proposal to NZAID:
23
CNURA policy statements, January 2008, Honiara, Solomon Islands page 14
2.1.7.1 Support for the National Women’s Machinery and the MFNR

Recognising the role of MFNR and WDD, this study recommends to NZAID to support
gender mainstreaming programs through the two ministries to strengthen women in
fisheries programs by supporting activities like:
 Gender Training for Fisheries Officers
 Gender Training for Board Members and Advisors in Fisheries Committees
including project screening committees.
 Training for national women’s machinery and other women’s organizations in
fisheries with the goal to encourage dialogue between these two ministries and
MEC and other NGO partners who deal with fisheries and natural resources
exploitation in Solomon Islands.
 A thorough case study of the Noro Cannery
 Support for women’s submission to the review of the fisheries act and the CBFM
policy.
 A national workshop on women in fisheries to identify issues to help Ministries
concerned to develop strategies for gender mainstreaming ministry programs.
 Support for awareness programs for women in fisheries, marine protected areas,
changing weather patterns, food security, and opportunities for women’s
participation at regional trainings in these areas.

2.1.7.2 Support for Training for Women in Fisheries

Training for women in fisheries should take a double approach. It should encourage more
women in the areas of science, fisheries, marine biology and lab work. It should also
support women already in managerial positions and decision making positions
encouraging women’s participation in boards and committees making decisions for
fisheries development in Solomon Islands and understanding that the exploitation of fish
in Solomon waters breeds other social issues which need women’s protection.
Women in communities would require necessary support for women’s participation in
community based projects or family projects but also individual women should be given
the opportunity to attend training in processing and marketing. For instance, support in
terms of training should be given to successful projects in Lau and Isabel for women
already organizing groups in two communities.

While national and regional training can be encouraged women in rural areas must not be
forgotten as they would be the ones engaging with marine life on a daily basis either for
subsistence use or conservation. This means rural women’s livelihoods activities should
be complemented with training in life skills to provide an alternative for women in
villages to promote income generation.

Clam shell farming in Western Province for example has three women in the project. One
is a school teacher so she has an alternative income. Two female clam farmers in
Kolombangara are inconsistent because their economic needs supersede their need to
farm clam. The slow turnover of clam farming provides an opening for them to divert to
line fishing thus neglecting their clam farms. Women like these should be encouraged and
supported in an alternative project through the Provincial fisheries center.

Additionally, the spread of the sale of “salt fish” from Honiara to the provinces raises
much contention amongst the public but it has to be considered that the salt fish (fish in
brine) is the cheapest supply of protein for many customers. There is need for support to
women sellers who in most cases at the Honiara Central Market and the Kukum fish
market make up about 70% of the sellers24.

2.1.7.3 Support for Provincial Fisheries Centers

Support should be given to Provincial Fisheries Centers in terms of making the
infrastructure gender sensitive. Women extension officers should be able to be housed
and equipment provided for implementing programs for community and specific ones for
women in rural areas in the provinces.
The provincial centers could assist women in project formatting and appraisals, advice
and training for fisher women and monitoring of projects in the first six months of
operation.

2.1.7.4 Support for Counseling Centers

Already there are NGOs carrying out counseling work for women (including prostitutes
and HIV/AIDS victims). The Seafarers Mission of the Church of Melanesia, CCC of the
Sisters of the COM, Family Support Center (FSC) provides support for victims of
violence and Hope Christian Academy (HCA) provides counseling support for teenage
pregnant mothers and traumatized young people and street children. There are other
NGOs and Churches with goals to deal with STIs and HIV/AIDS. Some specific
programs would need further research to find out what areas can be addressed to current
networks.

2.1.7.5 Support for Women’s Micro Credit Schemes

Emerging women’s groups and associations are established in Solomon Islands with the
overarching goal to address the need for economic empowerment. Groups like the Lauru
Land Conference in Choiseul, North Vella Women’s Association in North Vella,
Rokotanikeni in West Areare, Fikutaikini East Kwara’ae Women’s Association (FEKWA)
and the ALWA in East Malaita and Langalanga Lagoon and other like organizations in the
areas of focus NZAID chooses to work in. These women’s association needs
strengthening and NZAID should look into researching such groups to see how feasible
these organizations can assist women in fisheries projects. Here the Solomon Islands
Credit Union League (SICUL) and Solomon Islands Women in Business Association
(SIWIBA) could be a possible partner to provide business training and micro financing
for such women groups.

Areas of training should consider:

 Training in micro financing
24
Jane Stanley, Partners Improving Markets Study, 2009, Solomon Islands
  Savings Clubs
 Small group management
 Book Keeping
 Loan Management
 Leadership and report writing
 Training should also include exchange trips from recently established groups to
those already past ten years of operation.
Support for present infrastructures will not only build capacity of women groupings but
will ensure project sustainability. Fishery projects for women fail because there was no
prior training given to women’s groups like in the case of the project in Munda.

The main challenge our research found is experienced by many women groups doing
fishery activities is their daily needs and necessities for sustenance. There should be some
practical ways to assist women or communities to be financially empowered. This means
that any project or program targeting women’s advancement must acknowledge both the
women’s constraints to participation in fisheries and the need for gender equality in
decision making for income generation and access to markets.

2.1.8 Conclusion

Women in Fisheries in Solomon Islands have reached a place of breakthrough for

women’s participation. While the difficulty still remains in the area of offshore fishing,
more and more women are participating in fishing for sustainable livelihoods, increased
protein for food security, and fish marketing for financial independence. Both
government and NGOs dealing with the fishery sector are attempting to redirect focus on
women’s involvement in fishery. However, strategic programs will certainly contribute to
fast tracking the advancement of women in fisheries. With the help and support of the
New Zealand Government for the next 10 years, women in fisheries in Solomon Islands
could make progress to where women would be no longer a threat to male counterparts in
the field but would become equal partners instead.

Documents Consulted
Christian Care Center (CCC), August –October 2004, Situation Analysis of the
Commercial Exploitation of Children and Child Sexual Abuse in the Solomon Islands,
Church of Melanesia, Solomon Islands

Coalition for National Unity and Rural Advancement (CNURA), 2008, Honiara,
Solomon Islands

Stanley, Jane, 2009, Partners Improving Markets: Solomon Islands Markets, UNIFEM

People Consulted

All interviews done between 7-26th May 2009

Janet Tuhaika, Director, Women in Development Division (WDD)

Carlos Ahikau, Chief Fisheries Officer, Provincial Development and Extension, MFNR
Selina Lipa, Principal Fisheries Officer, Liscensing department, MFNR
Adrian Wickham, General Manager, National Fisheries Development (NFD)
Anne-Maree Schwarz, World Fish Center, Panatina
Pauline Soaki, Gender Officer, AusAID
Jenta Tau, Young Women’s Christian Association (YWCA)
Angela Lomasia, YWCA
Ella Kahue, Solomon Islands National Council of Women (SINCW)
Gwen Abana, Gizo 24/5/2009
Grace Hemmer, Treasurer, Western Provincial Council of Women, 24/5/2009
Julie Makini, WWF, Gizo (Email communication 17/6/2009)
Elizabeth Tara, Gizo Market 24/5/2009
Paul and John, Nusabaru Fishermen, Gizo 24/5/2009
Francis Tofuaka, Extension Fisheries Officer, Western Provicne 25/5/2009
Johnathan Bana, Deputy Provincial Secretary, Western Province, 25/5/2009
Mary Levo, Gizo, 25/5/2009
Grace Ani, Auki, 17/6/2009
Salome Topo, WWF Gizo, 25/5/2009
Bruno Manele, WWF Gizo, 25/5/2009