" DELAYING THE NANSEN SURVEY: A CONTRADICTION OF SRI LANKA’S MARINE SUSTAINABILITY VISION"

Aruna S. Maheepala

INTRODUCTION.

Coastal countries depend on healthy oceans for food, jobs, and climate control, but these resources are often not well managed and mapped. Sri Lanka's fishing industry provides about half of the country's animal protein (World Bank, 2022; Rathnachandra and Malkanthi, 2024). The 

country has a coastline of 1,340 km and an Exclusive Economic Zone (EEZ) of about 517,000 km², which is about eight times the size of its land area. To protect fisheries, tourism, and coastal ecosystems, it is required to manage them based on science (US Department of Commerce n.d.) (Parsons et al., 1998). To do that, it is important to have the most recent marine data (Kemp et al. 2023). Therefore, this article explains why coastal countries need fishery surveys for science-based management, and it also looks at Sri Lanka's Nansen survey history from the 1970s to 2018 and talks about the laws, national policies, and political problems that are relevant.

BACKGROUND: THE NANSEN PROGRAMME AND SRI LANKA.

The Dr. Fridtjof Nansen Programme, which started in 1975 by Norway and the FAO, has given developing countries research ships to use for regular marine surveys. These trips use echo-sounders, trawl hauls, and environmental sampling to map out fish populations, habitats, and ocean conditions (Sætersdal et al, 1999). Since then, the programme has gone through phases of exploratory surveys, ecosystem assessments, and climate-aware fisheries monitoring.

Nansen surveys started in Sri Lanka in 1978 as part of a Norway–Sri Lanka fisheries partnership (Jayarathna, 2023). Three cruises between 1978 and 1980 mapped the continental shelf around the island in a systematic way, looking at fish distributions, bottom habitats, and hydrographic patterns. (Krakstad et al, 2018) The Sri Lankan and Norwegian teams worked together to figure out the biomass by region and season using echo integration and trawling. These surveys showed that the shelf was generally productive, thanks to currents brought on by the monsoon, and that there were stocks of pelagic and demersal fish worth thousands of tonnes. Sri Lanka's reported fish landings went up from about 150,000 tonnes in 1979 to 180,000 tonnes by 1983 (BOBP, 1984). The Nansen work from 1978 to 1980 gave Sri Lanka its first scientific baseline on marine resources, which helped with long-term planning. After many years without full ocean surveys, fisheries management has mostly relied on the survey from 1978 to 1980, as many publications show that stock assessment data came from it. In 2017, the governments of Sri Lanka and Norway agreed to send the Dr Fridtjof Nansen ship to Sri Lanka in 2018 (FAO, 2019). The 2018 survey (June–July 2018) was paid for by Norway's development agency (NORAD) through FAO's EAF-Nansen Programme and included Sri Lankan scientists from NARA (FAO, 2018). People saw the results, which came out in January 2019, as a new way to learn about the ocean. Leaders from Norway and Sri Lanka said that the data would help Sri Lanka use science to manage its ocean resources and move closer to Sustainable Development Goal 14, which is about protecting the ocean (Krakstad et al, 2018).

INTERNATIONAL FRAMEWORKS.

The UN Convention on the Law of the Sea (UNCLOS, 1982) says that coastal states have the right to control their EEZs, but they also have to protect marine ecosystems and work together on research. For instance, Article 192 of UNCLOS says that it is the duty "to protect and preserve the marine environment", and Article 61 says that steps must be taken to keep living resources at levels that are sustainable (UN, 1982).

The new BBNJ Agreement (the High Seas Biodiversity Treaty of 2023) also stresses the importance of building capacity and transferring technology in ocean science. The BBNJ treaty has a whole section on "capacity-building and the transfer of marine technology". This is meant to help all countries, especially developing nations, collect and share marine data. (UN, 2023) As a member of the UN, Sri Lanka has agreed to improve its ocean science skills as part of the treaty.

The global Sustainable Development Goals strengthen these duties. SDG 14, "Life Below Water", asks countries to protect and use marine resources in a way that doesn't harm them. It needs good scientific data to reach its goals, such as 14.4 on stopping overfishing and 14.c on putting UNCLOS into action. One Sri Lankan official said that SDG 14 makes it clear that protecting the oceans is important for "the nation's economic growth". (Parada et all, 2023),   In SDG14, countries also agreed to follow international law (including UNCLOS) and put money into science-based marine management (Zhang et al, 2024).

The FAO's own tool such as the Code of Conduct for Responsible Fisheries (FAO, 2011), is a set of international standards that people can choose to follow to make sure that fisheries are sustainable. It tells countries to use "science-based management" and get the information they need to protect and develop aquatic resources. In other words, FAO rules say that fishery surveys and stock assessments must be done on a regular basis (Hoggarth, 2006).

The UN Decade of Ocean Science (2021–2030) is an example of a global effort that supports the message. This "Ocean Decade", which was announced in 2017, aims to "stimulate ocean science and knowledge generation" in order to "reverse the decline of the ocean system" and meet the 2030 Agenda.(Guibert, 2024)  Its slogan is "the science we need for the ocean we want," which connects ocean research (like Nansen surveys) to long-term growth and sustainability. To sum up, all of the major international frameworks, such as UNCLOS, SDG14, and FAO codes, tell coastal states like Sri Lanka to collect marine data, keep an eye on ecosystems, and use science to manage resources.

SRI LANKA’S POLICIES AND NEEDS.

Sri Lanka has included these goals in its national plans many times. For instance, the first draft of its National Fisheries Policy, which was written with help from Norway, was made in 2018.(Ministry of Fisheries, 2018) It has been outlined how to use fishery resources in a way that is good for the environment. Moreover, the significance of fish stock assessments and science-based approaches to fisheries management in Sri Lanka is emphasised in the Fisheries Midterm Plan (Ministry of Fisheries, 2023), the NPP presidential election manifesto (NPP Sri Lanka, 2024), and the proposed Fisheries Act (Department of Fisheries, 2024).

 

Policy/ Plan / Acts	Relevant Provisions that support to fish stock assessment
The national fisheries and aquaculture policy - 2018	Objective – Sustainable management of resources using science-based information (P3)
Fisheries Mid-term plan 2023 - 2027	Outcome 06.  - Ensure long-term sustainability of the fisheries industry (P31) 1.     Stock assessment of economic and edible fish spices identified 2. Draughting of regulation according to the stock assessment survey (regulation needs to be implemented according to the stock assessment survey)
A Thriving Nation, A Beautiful Life – NPP president Manifesto	Sustainable development and management (P69)     1. A real-time information system to capture, store, analyse, and distribute all data and information related to the fisheries sector.     2. Assess the oceanic fish resources and the maximum capacities of seawater & freshwater aquatic systems, and develop the industry based on such assessments.
Proposed Fisheries ACT	Part v - Management of fisheries and other aquatic resources     1.     Fisheries management and conservation measures adopted under this Part shall be based on the best available scientific evidence provided by NARA (P43)      2.     Director General shall determine the total allowable catch or total level of fishing effort for any fishery and adopt such other conservation and management measures as may be necessary to ensure the conservation and long-term sustainability of the resource (P45)     3. Total allowable catch may be set on a seasonal, annual or biannual basis, depending on the availability of fisheries data and the characteristics of each fishery, for certain commercial fish stocks or groups of fish stocks in weight or number of each species. (p45)     4.     The Director General shall prepare a list of the total allowable catch or total capacity of fishing effort for any fishery (P45)     5.     It shall be prohibited to grant fisheries subsidies and assistance to any person, master, owner, charterer, any person on board or any person suspected to have been on board who (C) engages in catching identified over-fish stocks based on scientific reports.

 

With all of this, Sri Lanka officially asked the FAO for help with a scientific survey through the EAF-Nansen Programme to succeed in the fisheries management initiatives. A deal between the two countries (Sri Lanka and Norway) made sure that the surveys from 1978 to 1980 happened, and then Sri Lanka asked for the Nansen Programme survey in 2018, which led to June–July 2018. The success of that mission has led to new plans. As a result, Sri Lanka has asked for another Nansen survey in 2025. The country needs new stock assessments to enforce its fishing laws, manage its EEZ, and reach its blue-economy goals.

CHALLENGES: SOP DELAYS AND GEOPOLITICS.

The old government banned foreign oceanographic and research ships from entering Sri Lankan waters in January 2024 (Sathiya, 2024). This ban will last all of 2024. This one-year ban has directly stopped the planning for the next Nansen cruise. The new NPP government of Sri Lanka has relaxed its one-year ban on foreign research ships coming into the island nation's waters for research. Future requests will be looked at on a case-by-case basis (Shihar, 2024).  The new government Foreign Minister Vijitha Herath only announced in late 2024 that a new committee would be formed to make an SOP for these kinds of ships (Sulochana, 2024). But it took longer periods for appointing (till mid of 2025) this SOP; it was one of the major barriers for neglecting the Nansen survey (Faizer, 2025). The important Nansen resource survey has challenges that go beyond the current NPP government. Managing complicated geopolitical situations, like the conflicting interests of China and India, has also been hard for past governments. These have caused negative effects for the survey. If the new SOP really does keep certain countries' ships out, Sri Lanka could ruin not only the Nansen (Norwegian) mission under FAO but also future science partnerships.

CONSEQUENCES OF NOT SURVEYING.

It would be risky to put off or cancel the survey. Sri Lanka won't have good information about fish stocks, biomass, or the health of its ocean ecosystem without a full Nansen survey. This means that officials at the Fisheries Ministry and scientists at NARA would have to make decisions without clear evidence on stock, making it hard to set fishing limits, create protected areas/declining fish species, or restore habitats. Without new fish stock survey data of Sri Lankan waters, Sri Lanka may struggle to detect and respond to issues like overfishing or unsustainable harvesting. As a result, problems might go unnoticed until they become serious, making it harder to manage and conserve marine resources effectively.

Sustainable stocks are important for fisheries livelihoods, nutrition of the nation, export income and coastal tourism. Successful decisions depend on accurate data gathered through scientific methods. However, a country like Sri Lanka lacks the capacity to carry out such technical surveys on its own as a result of limitations of both financial and human resources.  Although NARA owns a research vessel, it lacks the sophisticated technical equipment and highly trained scientists found on vessels like the Nansen. In addition, the country cannot afford the high costs related with conducting comprehensive fish stock assessments, especially given the existing economic challenges. As a result, Sri Lanka is missing a valuable opportunity that could have serious long-term consequences for the sustainability and development of its fishing industry.

Last but not least, there is a risk to Sri Lanka’s international reputation. Refusing to welcome the Nansen vessel, which operates under a UN FAO programme, could strain relations with international donors and negatively affect other FAO-supported initiatives as well.

 

REFERENCE

BOBP. l984.‘Marine Small-Scale Fisheries Of Sri Lanka: A General Description- BOBP/INF/06’. https://www.fao.org/4/ae484e/ae484e00.htm.

Department of fisheries. 2024. Proposed Fisheries Act. MALIGAWATTA – COLOMBO 10: Department of fisheries - Sri lanka.

Faizer Shaheid. 2025.‘Foreign Research Vessels: Committee Still at Sea over SOPs’. https://themorning.lk//articles/D4Syf1KY0EAATBUCy1Pr.

FAO, ed. 2011. Code of Conduct for Responsible Fisheries. Rome: FAO.

FAO. 2018.‘The Nansen Research Vessel Arrives in Colombo to Promote Sustainable Fisheries | FAO in Sri Lanka | Organisation Des Nations Unies Pour l’alimentation et l’agriculture’. https://www.fao.org/srilanka/news/detail-events/fr/c/1142552/.

FAO. 2019.‘Norway and FAO Welcome Findings of the Nansen Survey  | FAO in Sri Lanka | Organisation Des Nations Unies Pour l’alimentation et l’agriculture’. https://www.fao.org/srilanka/news/detail-events/fr/c/1178618/.

Guibert, Sophie. 2024.‘Ocean Solutions for Biodiversity: How the Ocean Decade Is Contributing to a Sustainable and Resilient Future’. https://oceandecade.org/news/ocean-solutions-for-biodiversity-how-the-ocean-decade-is-contributing-to-a-sustainable-and-resilient-future/.

Hoggarth, Daniel D., ed. 2006. Stock Assessment for Fishery Management: A Framework Guide to the Stock Assessment Tools of the Fisheries Management Science Programme. Rome: Food and Agriculture Organization of the United Nations.

Javier Parada, Ana Florina Pirlea. 2023.‘Life below Water | SDG 14: Life below Water’. https://datatopics.worldbank.org/sdgatlas/goal-14-life-below-water/?lang=en.

Kemp, Paul S., Gowshika Subbiah, Richard Barnes, Kristina Boerder, Bethan C. O’Leary, Bryce D. Stewart, and Chris Williams. 2023. ‘The Future of Marine Fisheries Management and Conservation in the United Kingdom: Lessons Learnt from over 100 Years of Biased Policy’. Marine Policy 147:105075. doi:10.1016/j.marpol.2022.105075.

Krakstad, Jens, Prabath Jayasinghe, Atle Totland, Padmini Dalpadado, Henrik Søiland, David Cervantes, Sudheera Samarasinghe Gunasekara, Liyanage Upul, Sujeewa Haputhantri, Ishara Rathnasuriya, Udeshika Wimalasiri, W. R. W. M. A. P. Weerakoon, Kankanam Gamage Nirbadha, Akila Harischandra, Rasika Wanigatunga, and H. P. M. Kithsiri. 2018. Survey of Regional Resources and Ecosystem of the Bay of Bengal-Sri Lanka.

Ministry of Fisheries. 2018. THE NATIONAL FISHERIES AND AQUACULTURE POLICY. MALIGAWATTA – COLOMBO 10: Ministry of Fisheries.

Ministry of Fisheries. 2023. Fisheries Sector Mid Term Plan 2023-2027. MALIGAWATTA – COLOMBO 10: Ministry of Fisheries.

N. Sathiya Moorthy. 2024.‘Decoding Sri Lanka’s Moratorium on Foreign Research Vessels’. https://www.orfonline.org/expert-speak/decoding-sri-lanka-s-moratorium-on-foreign-research-vessels.

NPP Sri Lanka. 2024. A Thriving Nation  A Beautiful Life - NPP. Pelawatte, Battaramulla,  Sri Lanka.: Jathika Jana Balawegaya (NPP Sri Lanka).

Parsons, L. S., H. Powles, and M. J. Comfort. 1998. ‘Science in Support of Fishery Management: New Approaches for Sustainable Fisheries’. Ocean & Coastal Management 39(1):151–66. doi:10.1016/S0964-5691(98)00021-0.

Rathnachandra, Dilini, and Pushpa Malkanthi. 2024. ‘Socio-Economic Importance of Inland Fishery and Adaptive Strategies of Inland Fishermen at Udawalawe Reservoir, Sri Lanka’. Sri Lanka Journal of Social Sciences and Humanities 4:37–49. doi:10.4038/sljssh.v4i2.123.

Sætersdal, Gunnar, Gunnar Sætersdal, Havforskningsinstituttet, Norwegen, and FAO, eds. 1999. The Dr. Fridtjof Nansen Programme 1975- 1993: Investigations of Fishery Resources in Developing Regions; History of the Programme and Review of Results. Rome: Food and Agriculture Organization of the United Nations.

Shihar Aneez. 2024.‘Sri Lanka Relaxes One-Year Ban on Foreign Research Ships amid Geopolitical Tussle’. https://economynext.com/sri-lanka-relaxes-one-year-ban-on-foreign-research-ships-amid-geopolitical-tussle-195327.

sulochana ramiah mohan. 2024.‘Special Committee to Handle Research Vessels Entering SL’. https://ceylontoday.lk/2024/12/21/special-committee-to-handle-research-vessels-entering-sl/.

UN. 1982.‘United Nations Treaty Collection’. https://treaties.un.org/pages/ViewDetailsIII.aspx?src=TREATY&mtdsg_no=XXI-6&chapter=21&Temp=mtdsg3&clang=_en.

UN. 2023.‘Intergovernmental Conference on Marine Biodiversity of Areas Beyond National Jurisdiction |’. https://www.un.org/bbnj/.

US Department of Commerce, National Oceanic and Atmospheric Administration. n.d.‘Coastal Ecosystem Science’. https://oceanservice.noaa.gov/ecosystems/coastalecosci/.

World Bank. 2022.‘Sri Lanka and the World Bank Explore Path to Sustainable and Inclusive Growth for the Fisheries Sector’. https://www.worldbank.org/en/news/press-release/2022/03/03/srilanka-world-bank-explore-sustainable-inclusive-growth-for-fisheries.

Y. N. Jayarathna. n.d.‘Factum Perspective: Marine Science Research in Sri Lanka – Pitfalls and Potentials’. https://factum.lk/regional-geopolitics/factum-perspective-marine-science-research-in-sri-lanka-pitfalls-and-potentials/.

Zhang, Shijun, Qian Wu, Muhammad Murad Zaib Butt, (Judge) Yan-Ming Lv, and (Judge) Yan-E-Wang. 2024. ‘International Legal Framework for Joint Governance of Oceans and Fisheries: Challenges and Prospects in Governing Large Marine Ecosystems (LMEs) under Sustainable Development Goal 14’. Sustainability 16(6):2566. doi:10.3390/su16062566.