Environmental conflict between artisan fishing and salmon farming final

Maria Fernanda Lozano Gacha
ENVIRONMENTAL CONFLICT BETWEEN ARTISAN FISHING
AND SALMON FARMING IN QUELLON CHILOE ISLAND
i

ENVIRONMENTAL CONFLICT BETWEEN ARTISAN
FISHING AND SALMON FARMING IN QUELLON
CHILOE-CHILE
MASTER THESIS
MARIA FERNANDA LOZANO
SPRING
VALDIVIA, CHILE
2007
ii

ENVIRONMENTAL CONFLICT BETWEEN ARTISAN
FISHING AND SALMON FARMING IN QUELLON
CHILOE-CHILE
Thesis presented to the Faculty of Economic sciences and administration of
the Austral University and Dortmund University as a part of the
requirement to obtain Master Degree in Regional Development Planning
and Management.
by
MARIA FERNANDA LOZANO GACHA
Valdivia, Chile
2007
iii

INFORME DE APROBACIÓN TESIS DE MAGISTER
La Comisión Evaluadora de Tesis comunica al Director de la Escuela de Graduados de la Facultad de Ciencias Económicas y
Administrativas que la Tesis de Magíster presentada por el candidato
MARIA FERNANDA LOZANO
Ha sido aprobada en el examen de defensa de Tesis rendido el día 29 de marzo de 2000, como requisito para optar al grado de
Magíster en Economía y Gestión Regional y, para que así conste para todos los efectos firman
Profesores Patrocinantes
_________________________
Dr. Teodoro Kausel
________________________
Dr. Alfredo Erlwein
Comisión Evaluadora
________________________
Dr. Christoph Kohlmeyer
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A mis padres
Fernando Lozano y Yolanda Gacha
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ACKNOWLEDGEMENT
I express my sincere gratitude to God for giving me the strengths to reach this
professional goal in my life.
In addition, I thank to:
- DAAD for financially supporting me to attend this program, and I hope I will be able
to contribute to a better development of my country.
- My advisors Dr. Teodoro Kausel and Dr. Alfredo Erlwein for their contributions which
led me to focus my research. And Dr. Matthias Günther for his valuable remarks, and
advices that contributed to improve this work.
- My flat-mate and almost sister Yegana Guliyeva who shared with me the happiest and
stressful moments in all the process of this research and my life as a student in Chile.
Edwin Gomez for his reflections that gave me the opportunity to have more perspectives
about the topic of planning in the Latin-American context. Johannes Horstmann, Okello
Obong and Karen Bueno who were very pleasant group-mates during the research
process in the Chiloé Island.
- The SPRING staff in Chile and Germany, Robinson Ampuero, Prof. Dr. Einhard
Schmidt-Kallert, and Dr. Wolfgang Scholz for helping me to accomplish this research.
- The Mayor of Quellón Luis Uribe, and his team, the secretary Claudio Velasquez,
Alejandro Cardenas, Pedro Gacitua and Jorge Oyarzún for supporting this research.
And the interviewees, Hector Morales, Tito Avendaño, Alfredo Millaren, Ivan Oyarzún,
Nelson Bustos, Fernando Acuña, Raul Arteaga and Nathalie Fuica who contributed with
their important information to develop this research.
- To Gladys Espinoza and Gisela for helping me in related logistic issues during the
research.
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vii
TABLE OF CONTENT
CHAPTER PAGE
TABLE INDEX .........................................................................................................................................IX
FIGURE INDEX ........................................................................................................................................ X
MAPS INDEX ...........................................................................................................................................XI
ACRONYMS ........................................................................................................................................... XII
APPENDICES INDEX .........................................................................................................................XIV
ABSTRACT............................................................................................................................................. XV
1. BACKGROUND OF THE STUDY .......................................................................................................1
1.1 INTRODUCTION .............................................................................................................................1
1.2 RESEARCH PROBLEM AND RATIONALE...................................................................................1
1.3 LITERATURE REVIEW ...................................................................................................................3
1.4 GENERAL RESEARCH OBJECTIVE..............................................................................................5
1.5 SPECIFIC RESEARCH OBJECTIVES .............................................................................................5
1. 6 SELECTION OF THE COMUNA OF QUELLON AS A CASE STUDY.........................................6
1.7 THE IMPACT OF RESEARCH FINDINGS......................................................................................8
2 . DATA COLLECTION AND METHODOLOGY.............................................................................11
2.1 ANALYSIS OF SECONDARY DATA............................................................................................11
2.2 DATA COLLECTION IN THE FIELD............................................................................................12
2. 3 INTERVIEW METHODOLOGY....................................................................................................12
2.3.1 Type and content of the interview.............................................................................................12
2.3.2 Selection of interviewees...........................................................................................................13
2.4 DATA ANALYSIS...........................................................................................................................15
3. GEOGRAPHICAL CONTEXT OF THE CONFLICT.....................................................................16
3.1 LOCATION......................................................................................................................................16
3.2 SURFACE........................................................................................................................................16
3.3 POPULATION.................................................................................................................................16
3.4 ECONOMIC ACTIVITIES ..............................................................................................................17
3.5 INFRASTRUCTURE.......................................................................................................................17
4. STAKEHOLDERS IDENTIFICATION.............................................................................................19
4.1 ARTISAN FISHING ........................................................................................................................20
4.1.1 Location of artisan fishing in coastal zones..............................................................................21
4.1.2 Regulatory framework ..............................................................................................................22
4.1.3 Size............................................................................................................................................22
4.1.4 Production ................................................................................................................................25
4.1.5 Organization of the fishing sector ............................................................................................26

viii
4.2 SALMON FARMING ......................................................................................................................26
4.2.1 Regulatory framework ..............................................................................................................27
4.2.2 Size............................................................................................................................................30
4.2.3 Production ................................................................................................................................31
4.2.4 Organization.............................................................................................................................34
4.2.5 Environmental Impact of the Salmon farming related to the artisan fishing............................34
4.3 GOVERNMENT- PUBLIC DECISION-MAKERS.........................................................................35
4.3.1 Municipality of Quellón............................................................................................................36
4.3.2 The National Fishing service (SERNAPESCA) ........................................................................36
4.3.3 Undersecretariat of Fishing (SUBPESCA)...............................................................................37
4.3.4 National Commission for the Environment (CONAMA)...........................................................37
4.3.5 National and Regional Commission for coastal planning: (CNUBC-RUBC) ..........................38
5. ANALYSIS AND FINDINGS OF THE ENVIRONMENTAL CONFLICT....................................39
5.1 GROWTH OF THE ARTISAN FISHING AND SALMON FARMING IN QUELLÓN .................39
5.1.1 Growth of the artisan fishing....................................................................................................39
5.1.2 Salmon farming growth ............................................................................................................44
5.2 CAUSES OF THE CONFLICT ........................................................................................................45
5.2.1 Use of the coastal zones............................................................................................................46
5.2.2 Environmental impact as cause of the conflict .........................................................................56
5.2.3 Labor displacement from artisan fishing to salmon farming....................................................61
5.3 STATE OF THE CONFLICT...........................................................................................................62
5.3.1 Control and Regulation ............................................................................................................65
5.3.2 Community participation in the process of concession granting for salmon farms..................71
5.4 CONSEQUENCES OF THE CONFLICT ........................................................................................72
5.5 POSSIBILITIES OF SOLUTION.....................................................................................................74
6. INTEGRATED COASTAL ZONE MANAGEMENT AS A TOOL FOR THE ENVIRONMENT
CONFLICT RESOLUTION ....................................................................................................................81
7. CONCLUSIONS ...................................................................................................................................91
REFERENCES..........................................................................................................................................92
APPENDIX 1.............................................................................................................................................96
APPENDIX 2.............................................................................................................................................97
APPENDIX 3.............................................................................................................................................98

ix
TABLE INDEX
Table Page
TABLE 4.2 CATEGORIES IN THE NATIONAL FISHER REGISTER 2005 .........................................23
TABLE 4.3 NUMBER OF FISHERS IN THE COMUNA OF QUELLÓN 2001-2005 ............................24
TABLE 4.4 ARTISAN FISHING PRODUCTION IN 2001 AND 2003...................................................25
TABLE 4.5. SALMON FARMS DISTRIBUTION IN QUELLÓN………...............................................30
TABLE 4.6 NUMBER OF SALMON FARMS AND AREA OF SALMON FARMING IN THE
COMUNA...................................................................................................................................................31
TABLE 4.7 PRODUCTION OF SALMON FARMS ( 1998- 2007) .........................................................32
TABLE 4.8 CHARACTERISTICS OF AREAS AND PRODUCTION IN SOME SALMON FARMS...33
TABLE 4.9. ENVIRONMENTAL IMPACT OF SALMON FARMING ON ARTISAN FISHING.........35
TABLE 5.1 ARTISAN FISHING GROWTH -KEY ANSWERS-.............................................................40
TABLE 5.2 INFORMALITY IN THE ARTISAN FISHING -KEY ANSWERS-.....................................43
TABLE 5.3 SALMON FARMING GROWTH –KEY ANSWERS-..........................................................44
TABLE 5.4 CAUSES OF THE CONFLICT –KEY ANSWERS-.............................................................46
TABLE 5.4 THE CONFLICT OF THE USE OF COASTAL ZONES – KEY ANSWERS-.....................47
TABLE 5.5 BENTHONIC SHOALS DEPLETION –KEY ANSWERS- ..................................................51
TABLE 5.6 ESCAPED SALMON –KEY ANSWERS-.............................................................................57
TABLE 5.7 USE OF ANTIBIOTICS AND CHEMICALS –KEY ANSWERS- .......................................60
TABLE 5.8. LABOR DISPLACEMENT FROM ARTISAN FISHING TO SALMON FARMING.........61
TABLE 5.9 STATE OF THE CONFLICT –KEY ANSWERS-.................................................................63
TABLE 5.10 CONTROL AND REGULATION –KEY ANSWERS-........................................................66
TABLE 5.11 PARTICIPATION OF THE COMMUNITY IN THE CONCESSION GRANTING
PROCESS ...................................................................................................................................................71
TABLE 5.12 CONSEQUENCES OF THE CONFLICT –KEY ANSWERS-............................................73
TABLE 5.13 POSSIBILITIES OF SOLUTION. –KEY ANSWERS-........................................................74
TABLE 5.14 MANAGEMENT AREAS OF BENTHONIC RESOURCES –KEY ANSWERS-..............79

x
FIGURE INDEX
Figure Page
FIGURE 1. PROBLEM SELECTION DIAGRAM ………….....................................................................3
FIGURE 2. STAKEHOLDERS DIAGRAM ……… .................................................................................19
FIGURE 3, ENVIRONMENTAL IMPACT ON THE SEA BOTTOM CAUSED BY LOCATION OF
SALMON FARMS…….. ...........................................................................................................................52

xi
MAPS INDEX
Map Page
MAP 1. SALMON FARMING LOCATION ON THE CHILOÉ ISLAND .................................................7
MAP 2. MANAGEMENT AREAS OF BENTHONIC RESOURCES ......................................................78
MAP 3. PROPOSAL OF THE COASTAL USE ZONING IN QUELLÓN...............................................83

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ACRONYMS
AAA Apt Areas for Aquaculture.
Areas Aptas para Acuicultura
AMRB Management Areas for Benthonic Resources.
Areas de Manejo de Recursos Bentónicos
CONAMA Environmental National Commission
Comisión Nacional del Medio Ambiente
COREMA Environmental Regional Commission
Comisión Regional del Medio Ambiente
CNUBC National Commission for the coastal use zone
Comisión Nacional del uso del Borde Costero
CRUBC Regional Commission for the coastal use zone
Comisión Regional del Uso del Borde Costero
DGA General Water Directorate
Dirección General de Aguas
DIA Environmental Impact Declaration
Declaración de Impacto Ambiental
DIRECTEMAR General Directorate of Maritime Territory and Merchant Marine
Dirección General del Territorio Marítimo y Marina Mercante
EIA Environmental Impact Assessment
Estudio de Impacto Ambiental
FAO Food and Agriculture Organization- United Nations
INFA Environmental Report
INTESAL Technologic Institute of Salmon
Instituto Tecnológico del Salmón
RAMA Set of environmental regulations for Aquaculture.
RSEIA Set of regulation of the Environmental Impact Assessment System
Reglamento del Sistema de Evaluación de Impacto Ambiental

xiii
SEIA Environmental Impact Assessment System
Sistema de Evaluación de Impacto Ambiental
SUBMARINA Undersecretariat for Navy
Subsecretaría de Marina
SERNAPESCA General Fishing Service.
Servicio Nacional de Pesca
SUBPESCA Undersecretariat of Fishing
Subsecretaría de Pesca
WWF World Wild Life Fund

xiv
APPENDICES INDEX
Appendix
A.1. Semistructured interview questions
A.2. Map of apt areas for aquaculture (AAA) SUBPESCA
A.3. Salmon farm centers, working areas for the artisan fishing and main
zones of conflict.

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ABSTRACT
Esta investigación describe un conflicto entre las dos actividades económicas mas
importantes de la comuna de Quellón. Este conflicto se origina fundamentalmente en la
competencias por la ocupación del espacio costero económicamente mas productivo de
la comuna. Pero mas allá de la ocupación del espacio, existen condiciones que revelan
un desequilibrio en la planificación y administración de los recursos naturales debido a
la preferencia del desarrollo económico sobre la sustentabilidad ambiental, a pesar que
esta última es una premisa en las políticas de desarrollo nacional, regional y locales.
Adicionalmente se proponen algunas alternativas para considerar en el proceso de
ordenamiento costero que se esta realizando en la región de los Lagos con base a los
hallazgos que originan el conflicto entre la pesca artesanal y la salmonicultura.
This research studies a conflict between the most important economic activities in the
comuna of Quellón, artisan fishing and salmon farming. This conflict began for the
competition in the use of the more productive coastal zones of the comuna. However,
some failures in the spatial planning and the administration of natural resources are
discussed. Some of this failures reflects the preference for economic development rather
than sustainable development although the latter is a premise in the national, regional
and local policies. In addition, and taking into account the findings of the conflict, some
alternatives for the current coastal use planning in the Lake Region are proposed.

1. BACKGROUND OF THE STUDY
1.1 INTRODUCTION
This paper focuses on the relationship between artisan fishing and salmon farming,
which are the principal economic activities in the comuna of Quellón. This
relationship depends principally on the compatibility of these activities in relation to
the use of natural resources. The paper presents a problem concerning to the use of
coastal zones that can affect the patterns of the comuna’s development. The scope of
the research is discover the principal characteristics of the conflict, analyzing the
stakeholders and proposing some aspects for its resolution. This qualitative research
uses the methodology of stakeholder analysis allowing the assessment of the
different perspectives of the people and entities involved in the conflict. It focuses on
detecting coincidences and contradiction between these perspectives.
The analysis and evaluation is made in the view of the future process of coastal
planning. It involves the topic of the natural resources’ administration as well.
1.2 RESEARCH PROBLEM AND RATIONALE
The salmon farming has produced important changes in the last 25 years in Chile and
especially on the Chiloé Island. This activity has transformed the territories, the
traditions, the environment and the economic activities of the island. These changes
require adaptation of the communities and generate conflicts with traditional
activities. Artisan fishing is one of the most important among these traditional
activities for the province of Chiloé.
The positive effects of salmon farming are recognized in Chile especially in
economic terms. Salmon farming is one of the most important exportation activities
in Chile. This country is the second largest producer of salmon in the world and it is
estimated that 53000 people work in jobs related to salmon farming in Chile (León,
1

2006). However, the environmental impact of this economic activity related to, for
instance, depletion of natural shoals of hydrobiological resources, changes in the
marine habitats, displacement of the artisan fishing and other traditional activities,
etc. have affected the development patterns of Chiloé. Taking an example, the
competition for the use of sea areas between salmon farming and artisan fishing can
influence the development of the comuna due to the environment depletion.
The relationship between the stakeholders is another aspect that can influence the
development patterns of Quellón. For instance, in the meeting for the sea sector in
“Chile Emprende” carried out on October 30th
, 2006 in the University of Castro, the
artisan fishers’ negative response to salmon farmers became evident. For instance,
the fishers claimed their right to capture salmons that escape from the farms while
the salmon farmers deny this right in accordance with the factual legal situation. At
first glance, this problem seems to be only legal, (i.e., who is the owner of the
salmon). Nevertheless, the responsibility related to the environmental impacts of the
escaped salmon must be carefully evaluated. In addition, this problem is understood
by the artisan fishers as an unbalanced power relationship between the fishers and the
salmon farmers.
The relationship between these two activities is important for harmonious
development of the community and its welfare.
However, the environmental impacts have not been neither tackled nor measured
locally. The influence of salmon farming on artisan fishers is scarcely mentioned in
studies related to the topic.
The selection of the comuna of Quellón as a study case to analyze the relation
between salmon farming and traditional fishery is an attempt to specify the most
relevant aspects of the conflict between this two activities.
2

Figure 1. Problem Selection Diagram …………
Figure 1 shows the scheme for problem selection. The development of the comuna is
based on four important elements: space, community, capital and public agencies
(municipality, regional and provincial governments, environmental and fishing
authorities among others). The links between these four elements is essential for
local economic activities. Among these activities salmon farming influences the
traditional activities due to its characteristics of rapid evolution and growth. The
effects and the impacts of salmon farming on traditional activities can be seen in
different dimensions such as economic, cultural, social, environmental and legal.
In order to limit the scope of the research, it concentrates on the environmental
dimension of the conflict between salmon farming and artisan fishers. It focuses
especially on spatial aspects.
1.3 LITERATURE REVIEW
The topic of the conflict or, more generally, of the relationship between artisan
fishing and salmon farming is found in the literature related to environmental
3

impacts of salmon farming. The different aspects of the conflict between artisan
fishing and salmon farming described in such studies are basically the following:
• Small scale fishers compete for aquaculture areas due to the loss of sites for
landing, anchoring and capturing algae and benthonic resources.
• Overlapping of areas for aquaculture with areas for other uses due to outdated
maps. The outdated maps also create discrepancies between the available
information and the geographical reality. (León, 2006).
• Reduction in the artisan fishing production because of changes in
employment relations (movement of artisan fishers to salmon farming sector)
and because of the reduction of marine biomass. (Terram, 2000)
• The inner sea of Chiloé is densely occupied. The distance between the
maritime concessions, Management Areas and aquaculture farms is
diminishing. This creates a latent dispute among the different stakeholders. It
is necessary to establish a formal zoning to reduce the conflicts among them.
(Pladeco 2006).
• The salmon industry generates social, economic and cultural changes in the
salmon regions. The explosive increment of population and the rapid
development of the salmon industry clash with a slow Public sector incapable
of generating the regulatory framework that this situation requires. All these
conditions create difficulties in the adaptation process of the communities.
This process leads to disparities, social and environmental problems and
conflicts with other activities like artisan fishing and tourism. (Pizarro 2006).
• Fish disembarking and farming of hydrobiological resources has contributed
to a rapid growth of the comuna. The population increment during the 90`s
was characterized by a lack of public services availability, housing and rural
communication. It has left a mark on in the urban structure, social services
and quality of life. (Servicio País, 2001).
• There is competition for physical space among salmon farming, artisan
fishing and tourism. (Niklitschek, 2006)
4

Al the aspects listed above, suggested that the conflict is principally originated by the
effects of patterns in the use of coastal zones.
1.4 GENERAL RESEARCH OBJECTIVE
Analyzing the conflict between salmon farming and artisan fishing of Quellón from
an environmental and spatial point of view.
1.5 SPECIFIC RESEARCH OBJECTIVES
• Finding the causes of the conflict between artisan fishing and salmon
farming in Quellón
• Evaluating how the environmental impact produced by salmon farming has
influenced the artisan fishing activity in the comuna of Quellón.
• Determining the “state of play”1
of the conflict in terms of relationship
between the stakeholders.
• Proposing alternatives that can be implemented in order to make the
development of these two activities in Quellón compatible with each other.
1
The state that has been reached in a process or negotiation , which has not yet been completed.
5

1. 6 SELECTION OF THE COMUNA OF QUELLON AS A CASE STUDY
In The Lake Region, where the archipelago of Chiloé is located, the salmon industry
has found the most suitable conditions for its development. This archipelago has a
particular marine conditions that makes it a unique place for the location of marine
productive activities.
In order to select the area of study in Chiloé, several visits were made to the comunas
of Ancud, Quellón, Castro, Dalcahue, Achao and Chonchi, between October 23rd
and
November 1st
of 2006. These visits were attended by representatives of the
municipalities. The problems and planning instruments for each comuna were
presented and discussed in the meetings.
The problems produced by salmon farming and its influence on the development of
the comuna were evident. However, the motivation for studying this specific topic
was more obvious in certain municipalities than in others. The municipalities of
Quellón, Chonchi and Achao showed a special interest in supporting research of the
influence of salmon farming in these comunas.
In this context, the selection of the comuna of Quellón as a case study had other
additional reasons. First, artisan fishing and salmon farming coexist in this comuna
and, second, the conflict is a representative case in the island because of the
following considerations: according to the report “Chiloé Region proposal” (Muñoz,
Saldvia, Ulloa, 2004), artisan fishing is mainly concentrated in two comunas: Ancud
and Quellón. This consideration reduced the options for the selection. Another aspect
considered was the development of salmon farming in these two comunas. The last
study of WWF (León, 2006) shows the distribution of salmon farming on the Chiloé
Island. According to this study the salmon farming activity in the Chiloé Region is
mainly located along the inner sea of Chiloé. The following map shows the
distribution of salmon farms.
6

Map 1. Salmon farming location on the Chiloé island
Source: Synopsis of salmon farming impacts and environmental management in Chile. (León, 2006)
The quantity of salmon farms is higher in the comuna of Quellón than in the comuna
of Ancud. This makes the evaluation of the relationship between salmon farming and
artisan fishing more relevant.
Another factor considered for the comuna selection was the concern of the
community about salmon farming. The report of the Workshop “La Chiloé que
queremos” accomplished in 2000 reveals some elements in understanding the main
problems of the comunas. The representatives of each comuna discussed the key
problems and how to deal with them. The main problems related to salmon farms and
artisan fishing presented by the representatives of each comuna showed a major
relevance in the comuna of Quellón.
7

In this workshop, the problems presented by the representatives of Quellón comuna
were:
• Pollution of beaches with salmon farms wastes
• Little space remains for artisan fishing.
• Pollution of the sea and rivers because of the existence of illegal wastewater
of salmon farms, salmon industries and fisheries.
• There is no respect for natural resources. Lakes and forests are negatively
affected by companies which are not penalized.
• Pollution of the Natri Lake and death of animals and plants due to drainage
dredging by the salmon industry
• Mollueco River: Severe pollution and construction of new salmon farms
which will produce the death of the Compu Stream.
In this workshop, the solutions given for the above problems by the representatives
of Quellón in that workshop were:
• Avoiding the development of new salmon farms
• Discouraging the community from working for salmon farms.
• Reducing benefits for the establishment of salmon farms and industries in
Chiloé, especially in Quellón.
The solutions proposed by the representatives of Quellón reflect their rejection of the
activities related to salmon. It was evident that the impact of the salmon activities has
stronger implications for the community in Quellón than in other comunas. Therefore
Quellón has important characteristics for developing the case study.
1.7 THE IMPACT OF RESEARCH FINDINGS
Many aspects of the salmon industry have been studied, like its economic impact, the
economic model, market issues, technological development, growth in Chile, social
8

and environmental impact. Although there are many studies about the environmental
impact of salmon farming, the conflicts with other activities like artisan fishing are
scarcely mentioned. This research attempts to assess this conflict in the framework of
planning development and utilization of natural resources. The stakeholder analysis
allows understanding the conflict and gathers the dispersed information to build the
diagnosis of the conflict.
Understanding the conflict between artisan fishing and salmon farming attempts to
propose alternatives to make the development of these economic activities
compatible. The result can be an element for decision making in the future coastal
planning and management processes .
KEY WORDS:
Benthonic resources: Refers to the organisms that live in the bottom of aquatic
ecosystems.
Comuna: The minimal administrative subdivision in Chile. This subdivision
involves mix zones (urban and rural areas).
Cove: Small bay, characterized by fishing disembarking. Generally, in these zones
communities of fishers are located.
Carrying capacity: Carrying capacity represents the point of balance between
reproduction potential and environmental resistance that is the maximum population
of a species that a specific ecosystem can support indefinitely without deterioration
of the character and quality of the resource.
Fishers: For this research, the word fisher is used to describe the person (woman or
man) whose job is to catch or collect any fish or any other benthonic resource from
the sea.
9

Inner sea: The inner sea water of the sea behind the normal base line. The last one is
the line of low tide of the coast of continental and insular land. In the places where
the coast has large open areas and scooped out areas or in those where there are
islands in the proximity along the coast, the line of base that joins those points is
taken as the normal base line.
Shoals: A larger number of fishing resources as a group in shallow water. Multitude
of fish.
10

2 . DATA COLLECTION AND METHODOLOGY
This case study is a qualitative research using the methodology of stakeholder
analysis.
The case study involves an examination of a single instance or event with a
systematic way of looking at events, collecting data, analyzing them, and reporting
the results.
The data collection is comprised of a) data from secondary sources, b) direct
observation and field visits and c) interviews with the main stakeholders .
2.1 ANALYSIS OF SECONDARY DATA
The secondary sources of information analyzed were:
Regulatory and normative information from the entities that represent each one of the
stakeholders in the field. Among the entities related to this topic:
• Dirección General del Territorio Marítimo y Marina Mercante
(Directemar) General Directorate of Maritime Territory and Merchant
Marine
• Subsecretaría de Marina (SUBMARINA), Undersecretariat for Navy
• Servicio Nacional de Pesca (SERNAPESCA), General Fishing
Service.
• Subsecretaría de Pesca (SUBPESCA) ); Undersecretariat of Fishing
• Dirección General de Aguas (DGA) General Water Directorate
• Comisión Nacional de Medio Ambiente (CONAMA) The General
Environmental Committee.
• The municipality.
11

• Federations and associations of artisan fishing.
• Salmon Chile (Association of the Salmon Industry)
Academic research from the Austral University of Valdivia and Los Lagos
University of Puerto Montt and Studies made by International organizations like
WWF (World Wild Life Fund) and recognized NGO’s like Ocenana and Terram
Foundation which have participated actively with publication, articles and seminars
on this issue.
2.2 DATA COLLECTION IN THE FIELD
Three field visits were carried out during the following periods.
October 2006: Definition of the topic of research and selection of case study.
January 2007: Identification of stakeholders and preliminary interviews
April 2007: Visits to identify the location of the salmon farming centers and final
interviews.
In addition some of the interviews were made in the city of Puerto Montt where
many important offices are found like CONAMA, Provincial Governor Office,
Regional Office of SERNAPESCA and Salmon Chile.
2. 3 INTERVIEW METHODOLOGY
2.3.1 Type and content of the interview
The type of interview was semistructured. This means that there were a previous
design of questions to orientate the content of each interview, however open
questions were made according to the direction of each interview. The structure of
each interview follows the logic stated in the objectives of the research. The
questions were focused on the following aspects or topics:
12

• Growth and development of artisan fishing and salmon farming in Quellón.
• Causes for the conflict from the point of view of each side.
• Possible consequences of the problem.
• Possible solutions.
The design of questions of each of the topics listed above, were based on the matrix
of identification of possible impacts on artisan fishing, on preliminary interviews and
others related to the development of the comuna. The core structure of the
interviews is presented in the appendix 1.
2.3.2 Selection of interviewees
Once the stakeholders were identified, one to three people of each stakeholder were
selected. The criterion used for the selection of each interviewee was the
representation of the group of every stakeholder. It is important to mention that from
the salmon farming sector there was a limitation due to the difficulties to discuss the
topic. Although visits to all the companies located in Quellón were made, only one
person agreed to do the interview with special conditions. Although this person has
not a representative position in the company, his answers are referential information
taken for the analysis. In addition two people from the association of salmon industry
accede to explain some aspects related to the sector. The interviewees selected in
each group are presented in the table 2.1.
Other sources of Data
In order to fulfill the information gap from salmon industry, this research used the
information of three files of salmon farms with Resolution of Environmental
Qualification from the electronic SEIA2
. It is important to clarify that not all the
procedures for obtaining the Resolution of Environmental Qualification are available.
A detailed search of these files was made in the category “approved” for activities of
“aquaculture” in the “10th
region”. Another search was made through the names of
the titleholders, only three files were found: Invertec Chiloé in Auchac, Pacific Star
2
Environmental Impact Evaluation System. Available in the CONAMA web page www. e-seia.cl
13

in San Pedro, and Yadrán in Chiguao Point. In addition some notes of seminars from
the salmon farming sector were analyzed
Table 2.1 : Interviewees
STAKEHOLDER INTERVIEWEE POSITION
DATE OF
INTERVIEW AND
OBSERVATIONS
Hector Morales President of the
federation of artisan
fishers.
January 24/2007
(preliminary interview)
April 28/2007
Tito Avendaño President of the
indigenous association of
artisan fishers.
January 25/2007
Artisan Fishers
Alfredo Millaren President of the Dock
Syndicate of the artisan
fishers.
May 2/2007
Raul Arteaga Ex regional director of
Salmon Chile
January 25/2007
Nathalie Fuica Environmental Assistant
of Intesal
June 18/ 2007
Salmon Farming
Name kept in reserve. Environmental Assistant
of a salmon farm.
May 2, 2007
Claudio Velazquez Mayor in charge of
Quellón
May 3, 2007Municipality
Alejandro Cardenas Head of the fishing affairs
office.
May 4, 2007
SERNAPESCA Iván Oyarzún Head of SERNAPESCA May 3, 2007
Captaincy of Port Octavio Castillo Under Head of Port
Captain
January 25, 2007
CONAMA Nelson Bustos Director of CONAMA
Puerto Montt
May 23, 2007
Regional
Commission for
the use of coastal
zones (CRUBC)
Fernando Acuña Technical secretary of the
Regional Commission of
Coastal zone use.
May 23, 2007
14

2.4 DATA ANALYSIS
The procedure selected for the data analysis was the thematic coding because this
procedure is the most appropriate for the study of groups defined a priori. In addition,
this type of coding is especial for comparing the distribution of perspectives on a
phenomenon or a process. The first step for the analysis included the identification
and profile definition of the principal stakeholders involved in the study. The
stakeholders are fishers, salmon farmers, municipality, SERNAPESCA, CONAMA
and Regional Commission for the coastal zone use (CRUBC). The second step was
to develop certain thematic domains and categories related to the conflict and
according to the objectives of the research. The third step was to classify the
stakeholders’ key answers from the interviews into the thematic domains and
categories. The last step was to cross check and coding the different key answers in
each category in order to make the analysis.
15

3. GEOGRAPHICAL CONTEXT OF THE CONFLICT
COMUNA OF QUELLON
A brief description of the general characteristics of the comuna is presented in order
to understand the geographical and spatial context of the case study.
3.1 LOCATION
The comuna of Quellón is located in the Province of Chiloé, Lake Region in Chile,
this Comuna is found between latitude south 42o
50` and 43o
40`. Quellón borders to
the north with the comunas of Chonchi and Queilen, to the south and east with the
Corcovado Gulf and to the west with the Pacific Ocean. The Panamericana highway
ends in this comuna.
3.2 SURFACE
Quellón includes an area of 3.157,50 km2
. This area represents 34,77% of the Chiloé
Island and 4,55% of the region. The Insular territory of the comuna is made up of the
Cailín, Laitec, Coldita, Guapiquilán, San Pedro, Guafo and Chaullín Islands.
3.3 POPULATION
According to the 2002 census, the population was 21.431 inhabitants in that year.
The population density was 6,8 inhabitants per km2
. The Urban population was
12.971 which corresponds to 60,5% of the total and the rural population was 8.460
inhabitants, or 39,5% of the total.
16

The rate of population growth considering the census 1982-1992 -2002 is 41.3%.
The fertility rate in the last triennium is 19,4%.
In 1982 the population was 10.014 inhabitants, in 1992 it was 15.005 and in the last
census 2002 the population was 21.431.
The current concentration of the population of Quellón in the urban area increased by
81% in regard to census 1992. Meanwhile the rural population increased by 45%.
This rapid growth not only in the urban but also in the rural areas is attributed to an
external migratory process. (Pladeco,2006)
3.4 ECONOMIC ACTIVITIES
The principal economic activities in the comuna are artisan fishing and farming of
hydrobiology resources (aquaculture).
In the rural sector the ovine production is a potential economic activity considered by
the municipality. The tourism is lagging. The service sector and commerce respond
to the demand of the local population and visitors.
3.5 INFRASTRUCTURE
Due to its geographical location and its ferry system, Quellón has become an
important linking point between the economic center of the country and Austral
southern regions.
Quellón is the principal artisan and commercial point in the 10th
region, it presents
the major port infrastructure on the Chiloé island. Therefore, the economic activities
around the extraction and commerce of hydrobiological resources and port services
17

of embark and disembark of products from 11th
and 12th
regions are important in the
comuna.
The poor conditions of connectivity of the 11th
region with the country is a
disadvantage for the provision of inputs required for processing salmon there. This
aspect contributes to Quellón being destination for the investment of salmon plants.
(Pladeco, 2006)
18

4. STAKEHOLDERS IDENTIFICATION
The process of stakeholders’ identification was made on the second field visit to
Quellón. Preliminary interviews with artisan fishers and the municipality
representative gave hints to select the most important stakeholders related directly to
the problem and organize the interview process. The following graph represents the
direct stakeholders that intervene in the conflict and their relation.
Figure 2. Stakeholders diagram ………
19

STAKEHOLDER PROFILES
A brief presentation of the more relevant characteristics of each stakeholder are
presented in this section.
4.1 ARTISAN FISHING
This research uses the concept of artisan fishing stated in the Chilean Law.
According to the General Fishing Law3
Artisan Fishing is defined as the extractive
fishing activity carried out by natural people. This extraction is made personally, in a
direct and habitual way.
Artisan fishing is considered a small scale commercial or subsistence practice
particularly using traditional techniques such as rod and tackle, arrows and harpoons,
throw nets and drag nets.
The General Fishing Law includes among artisan fishers also the ship-owner, shell
fishers and seaweed collectors and fishers.
Artisan fisher is someone who works as a skipper or crewmember of a artisan boat
whatever be the regimen of retribution.
Artisan Ship-owner is an artisan fisher who owns up to two artisan boats which in
total must not exceed 50 tons of big register4
. If the owners are two or more people, it
is understood that all of them are artisan ship-owners, who always share the
responsibility between them for penalties imposed by the law.
Shell fisher is an artisan fisher who extracts mollusks, crustacean, echinoderm and
shellfish in general with or without the use of a boat.
3
Decree 430/1991, Law 18892.
4
Refers to the size of the products collected.
20

Seaweed collector is the artisan fisher who collects seaweed with or without the use
of a boat.
4.1.1 Location of artisan fishing in coastal zones
The General Fishing Law establishes the development of the artisan fishing in a strip
of 5 miles of territorial sea. Such area is measured from the normal base line parallel
to the Chilean coast and around the ocean islands including inner water of the sea
behind this line. Then, Artisan fishing in Quellón can be developed in the inner sea
between the Chiloé island and the continent. But, it is important to consider that the
benthonic resource collection which is the predominant fishing activity in Quellón,
has a limitation of depth (25 m of depth) 5
for its execution, reducing the available
areas for many artisan fishers.
The Regional Development Strategy (1994) states that the areas located in the inner
sea of the island of Chiloé have special conditions for the development of hydro
biological resources. These areas present big tide fluctuations, gradient of salinity
and oceanic factors that favor biodiversity.
In relation to the location of fishers in the comuna of Quellón, it is important to
mention that this location of fishers is distributed in areas called coves. Coves are
small bays where the fishers disembark their products. Generally the coves are the
site of communities of fishers. The principal coves in Quellón are Curanue, Auchao
hamlet, Yaldad, Inio river, Comp. Huildad Auchac, Cailín island y Carmen Point.
These coves are important referent points for the fishers.
5
Maximum depth in which the fishers or divers can work for collecting the benthonic resources.
21

4.1.2 Regulatory framework
The principal and only requirement to perform the activity of artisan fishing is to be
registered in The National Register of Artisan Fishers which records the artisan
fishers, the boats, the vessels and the quotas for restricted fishing resources. This
register is made by regions, comunas and localities and by category of fishers in
accordance with the General Fishing Law.
In order to be included in the register, the artisan fishers must fulfill the requirements
stated in the art 51 and 52 of the General Fishing Law. These requirements concern
with civil status proves and the inscription in the maritime authority (Captaincy of
Port).
Among the conditions for being artisan fisher, it is important to underline that the
minimum educational level required is (8th
grade). In addition the ship owners must
have ships or vessels with a capacity of no more than 50 tons. In the register the
fishing authority defines the quotas for the extraction of some fish. There are no
requirements of environmental character.
4.1.3 Size
The information related to the number of fishers in the comuna is compiled by the
Captaincy of Port and the National Service of Fishing (SERNAPESCA). The number
of artisan fishers is different in the Captaincy and SERNAPESCA because there are
some people that do not complete all the procedures required for the register. Most of
the fishers drop out of the application process due to the educational requirements.
(Cardenas, personal interview, May 4, 2006). The Port Captaincy registered 3800
people in 2005, classified as it is shown in the table 4.1:
22

Table 4.1 Fisher categories register in Captaincy Port of Quellón.
CATEGORY NUMBER OF
PEOPLE
Chief of small ship 670
Artisan Fisher 1350
Shell fisher diver 1020
Assistant of diver 225
Crew member of small
ship
90
Radio Operators 325
Machinist of small ship 120
TOTAL 3800
According to SERNAPESCA, in the comuna of Quellón there were 2460 fishers in
2005, classified, as it is presented in the table 4.2:
Table 4.2 Number of artisan fisher in Quellón by categories. (according to the
National Fisher Register 2005)
National Artisan Fisher Register
SERNAPESCA
CATEGORY NUMBER OF
PEOPLE
Artisan ship-owner 401
Shell fishers 1000
Seaweed collector 343
Fishers 1528
Total 2460
23

The diagnosis of the fishing sector in the comuna of Quellón (Cardenas, 2005) states
that the comuna has no development of industrial fishing. The maritime authority
reports zero boats with a capacity larger than 50 tons. This means that artisan fishing
provides the total of hydrobiological resources disembarked that do not come from
aquaculture.
The number of artisan fishers has grown in the last three decades. This has
contributed to the overexploitation of the hydrobiological resources. There is no
exact data of the former number of fishers, first because the national register of
artisan fisher started in 1992 and second because the initial number of people
registered in the National Register of Artisan Fishing for that period, could not be
precise since the fishers have gradually adapted to the new rules for the activity. In
other words, the fishers have slowly begun to understand the importance of
formalizing their activity. Despite the limitations of gathering exact data, the
information collected during the interview with the stakeholders allows us to
conclude that the number of fishers has increased in Quellón. The migration of divers
from the central zone of Chile is the principal cause of this growth. (Pladeco, 2006).
According to the president of a Syndicate, the number of fishers in 1990 was 500
approximately (Avendaño, personal interview, January 24, 2006). Compiling
different data from the diagnosis studies of the comuna, the number of fisher
changed from 1290 in 2001 to 2460 in 2005. This considered the fishers that are
registered by SERNAPESCA. However the informal fishers could be up to 3500 in
2003. (Cardenas, 2005; Servicio País, 2001). The number of fishers in the comuna of
Quellón between 2001 and 2005 is presented in the table 4.3.
Table 4.3 Number of fishers in the comuna of Quellón 2001-2005
Year Number of fishers
2001 1290
2003 1743
2005 2460
24

Nowadays, salmon farming is taking some of the labor force from the artisan fishing
sector. There is no data related to this process of displacement of labor. However the
representatives of the municipality, SERNAPESCA, and the fishing associations
stated that this phenomenon has stabilized the number of artisan fishers. (Cardenas,
Morales, Oyarzún, personal interview, May 3,4, 2007)
4.1.4 Production
The data in the table 4.4 show the total number of disembarks registered in the
comuna of Quellón not including the products that come from aquaculture. In the
year 2001 the production was 58349 tons and in 2003 the disembarks reached 64976
tons of which the most representative resources were seaweed, sea urchin and
mollusks.
Table 4.4 Artisan fishing production in 2001 and 2003 in Quellón
Type 2001 Total
(tons)
Percentage 2003 Total
(tons)
Percentage
Seaweed 23668 40,6% 26524 40,8%
Fish 2478 4,2% 1016 1,6%
Mollusks 12299 21,1% 15505 23,9%
Crustacean 1498 2,6% 1977 3,0%
Echinoderm 18406 31,5% 19952 30,7%
Total 58349 100% 64976 100%
The data confirm that the main activity carried out by artisan fishers is the collection
of benthonic resources. The fish represent only 1,6% in 2003 of the products taken
from the sea.
25

The total production of artisan fishing tends to stabilize, because the supply of
benthonic resources does not increase. (H. Morales, A. Cardenas personal interview,
April 27, May 4 2007)
4.1.5 Organization of the fishing sector
There are three types of organizations: Unions of independent workers, Sector
Associations and Associations of Indigenous fishers. The national direction of the
Work, Ministry of Economy and the Conadi report the existence of 20 organizations
related to maritime activity, two sector associations and four indigenous communities
of artisan fishers. In addition, there are two associations of second level, the
Federation of Fishers under direction of Don Hector Morales and a net work of
fishing organizations. It is important to mention that there is a steady growth in the
number of organizations due to the fact that these associations make it easier for
fishers to acquire Management Areas of Benthonic Resources. This last aspect will
be explained in chapter 5.
4.2 SALMON FARMING
According to the General Fishing Law, aquaculture (and consequently salmon
farming) is the activity that aims for the production of biological resources with
human intervention. The term distinguishes itself from fishing as the idea that active
human effort maintains and increases the number of organisms as opposed to simply
taking them from the wild. Among the activities of aquaculture in Quellón, salmon
farming accounts for 92,3% of the total production. (Cardenas, 2005)
There are three principal activities in Salmon farming:
• Spawning and fertilization that occurs in contained freshwater fish farms.
• Smoltification that takes place in farms with estuarine features.
• Sexual development and maturity in open sea farms. (engorda )
26

In the three cases salmon are confined to reduced areas with controlled environments
and feeding conditions to accelerate their development (Leon, 2006). This research is
related to phase called “engorda” the sexual development and maturity because the
interrelation with artisan fishing occurs in this phase.
4.2.1 Regulatory framework
The principal law that establishes the regulatory framework of aquaculture is the
General Fishing Law. From this law six important regulations are derived:
• Regulation for Aquaculture Concessions and Permits (SD 290/93),
• Regulation of the Environmental Impact Assessment System (SD 95/2001),
• Environmental Regulation for Aquaculture (SD 320/01),
• Regulation for Protective, Control and Eradication Measures of High Risk
Diseases of Hydrobiological Species (SD319/2001),
• Regulation for the Control of Water Pollution (SD 1/1992) and Navigation
Law (SD2222/1978) (SUBPESCA, 2003).
• Apt Areas for Aquaculture (SUBPESCA)
The institutional framework linked to this regulatory body depends on various Public
Agencies, which include the General Directorate of Maritime Territory and Merchant
Marine (Directemar); Undersecretariat for Navy (SUBMARINA); Directorate of
Borders and State Limits (Difrol); General Fishing, Service (SERNAPESCA);
Undersecretariat of Fishing(SUBPESCA); General Water Directorate (DGA); and
the Environmental National Commission of (CONAMA).
27

Regulations for location of salmon farms
In Chile, the Undersecretariat of Fishing (SUBPESCA), determined the appropriate
areas for aquaculture (AAA) in Quellón through the Decree 208/20016
. The maps
DC307 and DC 308 (see appendix 2) present the areas in which permissions and
concessions of aquaculture can be granted in Quellón. The areas are mainly located
in coastal zones of Queilen channel, Auchao, Huildad Estuary, Chaullín island,
Chiguao channel, Quellón Bay, Laitec Island, Cailín Island, San Pedro Island, Inio
and Guapiquilán island. There are currently 50 farm centers in these areas. The
location of 407
of them are presented in the appendix 3.
Permits for salmon farming
The salmon farming activity is authorized by SUBPESCA through the figure of
concession.8
The request for a concession starts with SERNAPESCA (National
Fishing Service). The application requires background information, applicant
identification, technical project description, maps of the requested area, concessions
requested or underway, a technical report stating that the area requested has no
natural shoals of hydrobiological resources, and finally, any water use rights should
the area requested be under the jurisdiction of the General Water Directorate. (Leon,
2006). In this case the office of SERNAPESCA in Quellón verifies the inclusion of
all requirements for the evaluation and sends the application file to SUBPESCA.
Once this application is accepted, the titleholder can submit the project to the
Environmental Impact Assessment System (SEIA).
Since 1997, salmon farming enters in the System of Environmental Impact
Assessment (SEIA) with the code n3 “Annual Production equal or superior to 35 tons
of fish through a system of intensive production”9
Within the system, there are two
6
Last modification of Supreme Decree (M) N" 371, 1993.
7
Location of farms in the Diagnosis of the fishing sector in the comuna of Quellón 2005, and
information given by Iván Oyarzún of SERNAPESCA.
8
Concession for the case of farms located in the sea. Art 67 General Fishing Law
9
Set of rules for the environmental impact evaluation system. Supreme Decree (S.D) 95/2001. Art 3.
28

options of environmental assessment, the Environmental Impact Assessment (EIA)
and the declaration of environmental impact (DIA). The EIA is a comprehensive
study that provides a base line (field information), identifies, predicts and evaluates
the environmental impact produced by the projects and describes the measures and
actions that aim at preventing, minimizing, mitigating and correcting the negative
aspects associated with this impact. This kind of study also requires a process of
citizen involvement. DIA is a written declaration of the titleholder who expresses
that the activity fulfills the environmental legislation. The declaration attaches some
information about the activity and some measures to manage the impacts produced
by the project. The DIA is less demanding than the Environmental Impact
assessment and it does not require citizen involvement. The majority of salmon
farming projects presents the DIA in order to obtain the concessions. From the total
files reviewed in the SEIA for aquaculture there were no cases of presentation of EIA
by salmon farming projects.
The salmon farming project present the DIA or the EIA, for the approval of the
CONAMA. After the approval of the environmental study by CONAMA, the
SUBPESCA gives the concession to the project, the project approval is send to the
SUBMARINA, the agency in charged of issuing official resolutions of concession
areas. Before beginning their activities, project titleholders must be registered under
the National Aquaculture Register held by SERNAPESCA. Afterwards the areas are
delivered for starting the salmon farming activity.
In addition, salmon farms must fulfill the RAMA (Set of environmental regulations
for the activities of aquaculture). This includes different measures to control the
impact produced by aquaculture. These measures aim to control, the distances of
farms, the level of oxygen in the areas under the cages through reports, contingency
plans for escaped salmon, management of wastes and water wastes from the washing
of nets.
29

4.2.2 Size
Since the 80`s aquaculture has steadily grown in Quellón. Salmon farming has
experienced a big development and employs 80% of the labor force that works in
aquaculture and 18,7% of the total labor force of the fishing sector in the comuna.
(Cardenas, 2005) The table 4.5 presents the companies owning salmon farms, their
location and the number of farms. In 2005 there were 38 centers distributed in
following way:
Table 4.5. Salmon Farms distribution in Quellón in Quellón……………..
Company Centre location No of centers
Oqueldad 1
Cheted 1
Quellón Viejo 1
San Pedro 2
Laitec 1
Huildad 2
Guamblad 1
Salmones
Pacific Star
C/ San Antonio 1
Punta Paula 2
Quellón Viejo 1
Piedra Blanca 2
Mauchil 1
Yatac 2
San Pedro 1
Guamblad 1
Cailín 1
Laitec 1
Aquachile
Yaldad 1
Coldita 1
Los Alamos 1
Puerto Carmen 1
Cailín 1
Pelu 1
Cultivos
Yadrán
Chiguao 1
Mainstream Compu 2
Compu 1Marine
Harvest San Antonio 1
Unimarc Compu 1
Compu 1
Tepun 1
Invertec
Seafood S.
Yatac 1
Tornagaleones Chiguao 1
30

There is a change in the patterns of company ownership currently underway in
Quellón and Chile, in which the principal and most important companies of salmon
farming most of them with international holdings buy up or merge with the smallest
companies. (Cardenas, interview, 4 may 2007).
In Quellón Chilean owned companies include Aquachile (Pacífico Sur), while
foreign companies include Pan fish with Marine Harvest and Stolt Sea Farming
(purchased from Nutreco and Stolt Nielsen in 2004), Mainstream owned by the
Cermaq Norwegian Group, Fjord Seafood with Salmonamérica and Tecmar and
Nipon Suisan with Salmones Antártica (León, 2006).
Salmon farming has grown in terms of number of centers and areas used for farming.
The table 4.6 shows the number of centers between 1998 and 2007.
Table 4.6 Number of salmon farms and area of salmon farming in the comuna of
Quellón
Year Number of centers Area (ha)
1995-1998 19 146,64 ha
2001 34 n.a
2005 38 n.a
2007 50 491,84
In the following chapter a more profound analysis of the growth and development of
salmon farming in Quellón will be presented.
4.2.3 Production
Chile is the second producer of salmon in the world after Norway. Salmon is the
fourth export product in Chile with a 5.5% of participation on exports. The salmon
industry was consolidated in Chile between 1974 and 1990. The national production
31

of salmon is 494.000 tons per year, within the fishing sector salmon production
representing 51.1%10
. Salmon in the Lake Region accounts for 82% of the national
production. The principal species produced are Atlantic Salmon, Pacific Salmon and
Rainbow Trout .
The production in Quellón is neared 67098 tons in 2006 (SERNAPESCA, 2007),
which means almost 13% of the national production. The production in the comuna
has grown around 231% since 1998. The table 4.7 presents the production of salmon
farms between 1998 and 2007:
Table 4.7 Production of salmon farms (1998- 2007) in the comuna of Quellón.
Year Production (tons) Increment in
regard to 1998
( %)
Increment in
regard to the last
year (%)
1998 20.243,00 0 0
1999 23.257,00 14,9 14,9
2000 37.543,00 85,46 61,42
2001 48.533,00 139,75 29,27
2002 49.951,00 146,75 2,92
2003 48451,968 139,35 -3
2004 58149,947 187,25 20
2005 62819,359 210,32 8
2006 67098,475 231,46 6,8
Source data: SERNAPESCA
As a reference, an analysis related to the characteristics of production in the farms
were made. From the Declaration of Impact Assessment (DIA) of the Environmental
Impact Assessment system (SEIA), three centers of the comuna of three different
companies were analyzed, the information related to production and areas are
synthesized and showed in the table 4.8:
10
Newspaper La ESTRATEGIA. Chile 25 de mayo de 2004
32

Table 4.8 Characteristics of areas and production in some salmon farms.
Company Area Volume Production Density
Used
Area
Free Area
Percentage
of free
Area
ha m3 ton kg/m3 m2 ha %
1.1 28,56 4284000 1350 15 6000 27,96 97,90
1.2 49,87 7480500 3816 15 16960 48,174 96,60
2 3,78 378000 1344 12 11200 2,66 70,37
3 6 900000 2520 14 12000 4,8 80
The analysis showed the following aspects:
-The company number 1, (1.1 and 1.2) increased the area required for salmon
farming by almost 100% and the production by 282 times, from 1996 to 2003.
-There is some free area remaining11
. This area varies from 97% to 70 %. This can
occur due to the salmon farming procedure of rotation of cages. This procedure is
mainly used because the anaerobic conditions of the water can affect the production.
It is important to mention that this area (zone) can not be used by others.
-The densities reported in the files vary from 12 kg/m3 to 15 kg/m3, however the
assistant of one farm reported densities of 18 kg/m3. This means that the densities
are gradually increasing in salmon farming .
photo: Matthias Günther
Salmon Farm in San Pedro Island
11
Free area means areas which are not used for the location of cages for salmon farming, according to
the reported density and production.
33

4.2.4 Organization
The Chilean salmon trade association, Salmon Chile is the entity that associates the
salmon industry companies. During 2004, there were 68 salmon exporting companies
in Chile, and 24 of them were members of Salmon Chile. Companies associated with
Salmon Chile accounted for 82% of total salmon exports.
Intesal (Technical institute of Salmon) is part of Salmon Chile. This institute
develops the technologic research required for the industry including the
environmental aspects.
4.2.5 Environmental Impact of the Salmon farming related to the artisan fishing
According to different studies related to the environmental impact produced by
Salmon Industry, the principal causes, impact and environmental effects that can
potentially affect the artisan fishing due to salmon farming are summarized in the
table 4.9:
34

Table 4.9. Environmental Impact of salmon farming on artisan fishing
Cause or
activity
Impact Effect on the artisan fishing
Feeding
process
Settling of food
and faeces
from the
salmon.
Quality of water depletion.
Reduction of oxygen.
Increase of algae.
Destruction of shoal of benthonic
resources.
Escape of
Salmon
Competition
for food and
space with the
native fauna.
Salmon enter the food chain
as an important predator.
Usage of
antibiotics
Chemical
transfer to the
native fauna.
Alteration of natural conditions.
Transfer to native fauna.
New spawns Introduction in
the ecological
chain of new
species.
Damage of native species
Location of
cages
Reduction of
areas for other
uses.
When the location of cages can
affect shoals of benthonic resources
Reduction
of the
native
flora and
fauna
4.3 GOVERNMENT- PUBLIC DECISION-MAKERS
The public agencies related directly with the conflict are:
35

4.3.1 Municipality of Quellón
The municipality is conceived as a autonomous organization, whose principal
objective is to satisfy the needs of the local community assuring their participation in
the economic, social and cultural progress.
The municipalities are formed by the mayor and the council. Some of the functions
of the municipality are shared with other Public agencies. This is the case of
environmental protection which function is shared with the CONAMA. The planning
process of the municipality is distributed in three important tools for the comuna:
The Pladeco that is the Plan for development of the comuna. This document states
the principal objectives, mission, strategies and projects for the comuna development.
The latest version of the Pladeco in Quellón is from 2006.
The regulator plan is the spatial dimension of the planning in the comuna. This plan
is focused on the urban area. This plan presents is to structure the development of
infrastructure, compatible uses in urban areas and services of the comuna.
The third element is the municipal budget.
None of the last planning tools has direct inference over the coastal zones.
4.3.2 The National Fishing service (SERNAPESCA)
SERNAPESCA is the institution in charge of executing and pursuing the General
Fishing Law. Since the General Law for environment was enacted, SERNAPESCA
is part of the entities in charge of the evaluation of the aquaculture projects and its
supervision. SERNAPESCA develops a technical concept about the concession
application and this concept is sent to undersecretariat of fishing that makes the last
decision.
36

SERNAPESCA is in charge of executing the national fishing policy. This entity is
also in charge of the sanitary quality of the fishing products, to propose development
plan for sport fishing, tuition of marine reserve parks and provision of fishing
statistics of the Chilean fishing sector.
In addition, SERNAPESCA has the mission of controlling the fishing, sanitary and
environmental norms and the international agreements for regulating the fishing
activity in order to protect hydrobiological resources assuring the sustainable
development of those resources. One provincial office of the region is located in
Quellón whose director is Ivan Oyarzún
4.3.3 Undersecretariat of Fishing (SUBPESCA)
The undersecretariat of fishing is part of the Ministerio de Economía, Promoción y
Reconstrucción (Ministry of economy, promotion and reconstruction). Its mission is
to promote the sustainable development of fishing activity, defining policies and
applying the norms for increasing the social and economic benefit of the sector for
the welfare of present and future generations (SUBPESCA, 2006)
Its principal objective is to propose, implement and spread the norms for promoting
sustainable development of fishing activity and aquaculture. In addition, to maintain
institutional coordination for the implementation of the fishing sector norms.
4.3.4 National Commission for the Environment (CONAMA)
CONAMA is the consultancy entity in environmental issues for the State in Chile.
CONAMA depends on the Secretariat Minister and its principal responsibility is to
coordinate the national environmental management.
Another important function is administrating the environmental system assessment.
(SEIA).
37

At the regional level, the COREMA the regional Commission for the environment,
coordinates the environmental management in the region and prepares the
environmental qualification of the projects under the SEIA. The Corema is
composed of the regional Intendant, Provincial Governors, Regional Secretaries of
the Ministers that conform the CONAMA, four advisers and the Regional Director of
CONAMA. The regional direction is located in Puerto Montt. The regional director
offers the technical support for the COREMA.
4.3.5 National and Regional Commission for coastal planning: (CNUBC-RUBC)
These are Commissions whose responsibility is to propose the zoning for the coastal
border of Chile. This commission depends on the SUBMARINA of the Ministry of
Defense. This zoning process is made by regions. Nowadays the coastal zone use
plans or coastal zoning are applied in the 6th
, 8th
and 11th
regions.
38

5. ANALYSIS AND FINDINGS OF THE ENVIRONMENTAL CONFLICT
This section presents some of the most important aspects in the conflict which are
analyzed in this paper, combining the data from the interviews with the stakeholders
and the data from secondary sources. The data are classified in five main thematic
domains: evolution of the salmon farming and artisan fishing in the comuna, causes
of the conflict, state of the conflict, consequences of the conflict, and possible
solutions for the conflict. Each thematic domain contains some categories that result
from the classification of the most important aspects considered by the stakeholders
in the thematic domain. These important aspects will be called “key answers” which
are presented in tables that synthesize and compare them. After each table an
analysis of the topic is developed.
5.1 GROWTH OF THE ARTISAN FISHING AND SALMON FARMING IN
QUELLÓN
The first step in the process of conflict evaluation was to understand how each
activity has grown in the comuna.
5.1.1 Growth of the artisan fishing
The principal aspects related to the growth of artisan fishing in Quellón are the
presented in the table 5.1:
39

Table 5.1 Artisan Fishing Growth -key answers-
ARTISAN
FISHING
MUNICIPALITY SERNAPESCA CONAMA
Quellón is a fishing
comuna.
The fishing sector
grew after military
coup because of the
exploitation of loco.
Currently the growth
is very low.
There is a current
process of migration
from artisan fishing
to salmon farming
Fishing is present
since earlier times.
There was a process
of migration of
fishers to Quellón
due to the loco
exploitation.
Currently the
number of fishers
tends to be stable,
with a possible
reduction.
In 2001 was the
maximum point in
the number of
artisan fishers.
Further development
depends on the
stability of
resources.
The growth in the
artisan fishing
happens because the
register never closes.
There are more and
more fishers.
The fishing sector
has been reduced
because of new
restrictions in
fishing quotas and
location of new
salmon farms.
There are three principal kinds of answers in the interviews about this topic. The first
one recognizes Quellón as a comuna characterized by fishing activity. The second
one emphasizes the sustained growth of the sector in previous years because of the
loco12
exploitation, and the third one describes a current process of stabilization in
terms of the number of artisan fishers and production.
The first point confirms that artisan fishing is considered one of the most important
economic activities in the comuna of Quellón (Pladeco 2006). Around 4000 people
and their families depend on this activity. Artisan fishers represent 41,1% of the
labor in the fishing sector of Quellón. This number is representative for the comuna
12
Locos are one of the most important species of shellfish which is extracted along the coasts of
Chiloé.
40

taking into account that aquaculture (including salmon farming) absorbs 18,7% of
manpower and salmon plants 38,2%. (Cardenas, 2005)
The second point describes the evolution of the quantity of artisan fishing in the
comuna. One of the aspects identified in the literature as an impact of the salmon
farming sector on artisan fishing is related to the fact that the number of fishers is
decreasing. (Terram, 2000). However, the case of Quellón showed a different
scenario until 2001, even though the salmon farming is not recent in the area. The
artisan fishing sector grew in Quellón since the 80´s due to the migration of fishers
from the central area of the country to Quellón (Pladeco 2006). This increment
produced an overexploitation of natural resources.
In accordance with the data from the National Artisan Fishing Register, in the last 6
years (from 2001 to now) the number of registered artisan fishers rose 90% in
Quellón. However, this increment of registered fishers does not necessarily mean a
growth of the number of active fishers in the comuna. Part of this growth can be
explained by the legalization of informal fishers. However, it is not possible in this
research to determine the precise number of active artisan fishers. A diagnosis of the
fishing sector reports that 2000 fishers are working in the informal sector. (Servicio
País, 2001). According to the data collected in the field, it can be estimated that the
number of informal artisan fishers is between 50 and 70 % of the total number of
active fishers (Morales, personal interview, January 23 2007; Avendaño, personal
interview, January 2007 and Millaren, personal interview, May 3 2007). This point
will be discussed more explicitly in the following category.
The third point is related to the current stabilization of the number of fishers. Despite
the fact that the number of fishers has increased in the register in the last 6 years,
some interviewees declared that the number of fishers is stabilizing. (Cardenas,
Millaren, Morales, personal interviews, May 4,2, April 28, 2007). These interviewees
declared that the displacement of manpower from artisan fishing to salmon farming
as well as the limited availability of the benthonic resources are the main causes of
this stabilization.
41

Informality in the sector of artisan fishing
Artisan fishers are called “informal fishers” when they work in fishing although they
are not registered in the National Register of Artisan Fishing. The topic of
informality is taken into consideration in this research because the high percentage of
informality can affect the decisions related to natural resource planning. The
stakeholders that reported informality in the interviews, described the implications of
this phenomenon in the development of the artisan fishing.
The causes, implications and the principal ideas about the topic are displayed in the
table 5.2.
The stakeholders agree that the principal cause of informality in the artisan fishing
sector is the requirement of certain education level for the fishers. This educational
requirement is to have at least an 8th
grade level. Although the interview did not
elaborate about the reasons for fishers to drop out of the procedures of registration,
some of the causes declared by the interviewees are related to the socioeconomic and
cultural conditions of the people13
. (Alberto Millaren, personal interview, May 3,
2007)
Many of the answers in regard to the effects of the informal fishing coincide that one
effect of informality is the distortion of the administration of the artisan fishing
activity. This distortion is related to the possibility to control the exploitation,
distribution and management of the natural resources. In addition, the representative
of the municipality suggested that the exclusion of the informal fishers from the
formal artisan fishing sector is one aspect that affects seriously the informal artisan
fishers. The informal fishers cannot be represented, they cannot associate, they work
under insecure conditions etc. Due to its magnitude, the informality is an important
fact to consider in a possible redistribution of areas and resources within the sector.
13
Interviewees declare as causes: low income, people prefer to earn money that study (faster money),
the families requires to the kids to work since early age.
42

Table 5.2 Informality in the artisan fishing -key answers-
ARTISAN
FISHING
MUNICIPALITY SERNAPESCA CAPTAINCY
OF PORT
CAUSES OF INFORMALITY
The educational
requirement is the
principal cause of
the fishers avoiding
in the registration
legal system.
In earlier times, the
requirements for
being a fisher
depended on a
fisher’s own
knowledge.
The fishers prefer to
work rather than
spend time studying
to fulfill the
requirement for the
registration.
The high educational
level required for
fishers to register
contributes to
informality in the
sector.
Fishers are excluded
by the level of
schooling.
EFFECTS OF THE INFORMAL ARTISAN FISHING ACTIVITY
Informal artisan
fishing is for
controlling the
activity.
The distribution of
quotas is applied to
legal fishers, but the
reality is different.
Rescue activities are
more expensive for
informal fishers.
Informal artisan
fishing affects the
administration of the
fishing activity.
The statistics of
disembarkations,
efforts of fishers are
distorted.
Lack of knowledge
about their activities.
The informal fishers
do not have
opportunity to be
represented by their
leaders.
There is no data
about the in formal
fishers.
The authority can
not control the non
formal fishers.
The formal fishers
cede or sell the
quotas to the
informal fishers
The captaincy of
port controls the
issue of
skillfulness for
driving boats
43

5.1.2 Salmon farming growth
This category analyses the growth and evolution of the salmon sector in Quellón.
Some key statements related to this topic are presented in the following table:
Table 5.3 Salmon Farming Growth –key answers-
SALMON FARMING MUNICIPALITY SERNAPESCA
In Quellón an important part
of the salmon industry is
concentrated.
Twenty (20) years ago the
Salmon industry was 200
places from the Norway
industry, now the relation is
1 to 1.
There was an explosive
development of the salmon
industry. This development
could not be possible
without the development of
technology and
environmental control.
The salmon is an industry
that will grow in the 11th
and 12th
region. It will not
grow in the 10th
.
Salmon farming has existed
in Quellón since the 80´s.
At first Chilean companies
arrived but afterwards fusion
process with international
holdings characterized the
ownership patterns.
First the salmon farms came
and then the so-called
“cluster of salmon”. Many
of the services of the cluster
were offered by artisan
fishers.
Salmon farming has grown
faster in Quellón that in
other places. This growth
was produced by the
geographic conditions of
Quellón
10 years ago, Quellón had
15 centers, it has 40
currently, it means fourfold
in 10 years.
The analysis of the growth of the salmon faming in Quellón shows that: the general
consensus among the interviewees is that salmon farming has had an explosive
development in the comuna. According to the interviews salmon farming appears in
the comuna during the 80´s (Cardenas, personal interview, May 4 2007). The
development of salmon farming is characterized by more centers of farming, which
implies more areas for production and an increased density in the farming process.
According to the fishing authority in the comuna this growth in terms of number of
the centers has been 300% since ten (10) years ago. The figures presented in the
profile of this stakeholder, showed a growth of 231% in the production of salmon by
44

2006 with regard to 1998. The largest increment in the production during that period
was in 2000 (61,42%) compared to the previous year. In terms of areas the growth is
235% in regard to the period 1995-1998. These figures confirm the rapid growth of
salmon farming in Quellón during the last ten years.
5.2 CAUSES OF THE CONFLICT
In this section, the main aspects that create the conflict are defined and studied. One
of the principal questions in the interviews was related to the causes of the conflict.
The answers related to the causes of the conflict are synthesized in the table 5.4:
The general ideas point out many aspects that are classified for the analysis in two
categories, the competition in space use and the environment pollution. However the
first category is directly related to the second14
. In other words the cause of
competition in the space use is not only an issue of space by itself, it is an aspect
related to the space where the natural resources are located or could be affected by
the location of salmon farming. For salmon farming the space is a topic related to
places with the most suitable conditions for developing the farming activity. The
second category compiles the causes related specifically to the effects of the escaped
salmon and use of chemicals in salmon farming. In addition, another topic related to
displacement of labor is presented to be analyzed only from the environmental
perspective according to the scope of the research.
14
This classification is made in order to organize the analysis
45

Table 5.4 Causes of the conflict –key answers-
ARTISAN FISHING SALMON FARMING MUNICIPALITY
Space
Labor displacement.
Use of artisan areas by
salmon farming.
Cages over shoals of
benthonic resources.
Pollution
There is no conflict.
Disagreement in shared
spaces.
It is not possible to give an
answer.
Territorial and maritime
aspirations.
Environmental effects of the
salmon farming activity.
SERNAPESCA CONAMA CRUBC
Displacement of artisan
fishers from their historical
places of work.
Aquaculture requires more
areas, in addition the
technological development
of aquaculture allows its
location in different areas.
The management of salmon
farms is not friendly with the
environment.
The artisan fishing regards
the salmon fishing a
responsible for the damages
perceived in the activity of
fishing. But some of those
damages are generated by
themselves.
For use of the space.
For escaped salmon and the
consequently loss of
biomass.
The salmon farming location
can affect benthonic
resources.
For intensive use of
antibiotics.
Pollution of sea bottom.
Every user desires more
space for their own
activities.
5.2.1 Use of the coastal zones
This topic is related to the coastal space and the location of shoals of benthonic
resources. All the aspects related to the use of coastal zones were selected in order to
describe the principal characteristics of this cause of the conflict:
46

Table 5.4 The conflict of the use of coastal zones – key answers-
ARTISAN FISHING SALMON FARMING MUNICIPALITY
Salmon farms are located
over shoals of benthonic
resources causing extinction
of benthonic resources.
Occupancy of the historical
areas used by artisan fishers.
There is no more space all
the areas are assigned.
The conditions for
developing salmon farming
and artisan fishing of
benthonic resources
coincide.
The sediment product of
salmon farming does not
allow life where it settles.
In salmon farming there is a
rotation of cages when the
conditions are not
appropriate for the fish.
There is no problem with the
transit of ships.
Overlapping of concession.
There is no conflict with
artisan fishing.
When the conditions in
certain places do not favor
salmon farming, the cages
are moved.
Restriction to artisan fishers
in the granted areas for
aquaculture.
Before the salmon farming
appeared, there was no
restriction of areas for
artisan fishing .
The rotation of modules and
cages is a way to minimize
the impact in the bottom of
the sea. There is no specific
regulation in regard to the
rotation.
SERNAPESCA CONAMA CRUBC
These places have
historically been used by
artisan fishers.
The conflict is principally
for the use of space and for
the impact on the natural
resources. But the
environmental impact is also
caused by artisan fishers.
90% of the region is
occupied. The acquired
rights, makes the process of
planning difficult in the
zone.
There are different aspects related to the problem of the use of coastal zones that will
be described as follows: The fishers and the fishing authority coincide that the
“historical use”, referring to the use of coastal zones since earlier times by fishers,
has been partially displaced. According to some diagnosis of the comuna, the
47

indigenous communities of the zone were the first artisan fishers. In the 80’s, due to
an economic crisis and a process of changes of land use, many local people came to
the coastal-line and founded new settlements. The new settlers used to subsist on the
sea and to receive their income from sea products. This fact and the migration of
artisan fishers from the central zone made artisan fishing the most important
economic activity in the comuna (Servicio País, 2001). Indeed, the artisan fishing
was and is an historic activity in the comuna.
Another important characteristic in the use of the fishing resources was its free
access which changed with the General Fishing Law. The “restriction” of the free
access (as it was called in some interviews) imposed by this law limited the
exploitation of some fishing or hydrobiological species by means of “quotas” for the
artisan fishers.
The General Fishing Law is an effort to administrate and regulate the fishing and
aquaculture. Its principal objective is the conservation of the hydrobiological
resources. This became necessary because of the overexploitation of hydrobiological
resources in some zones of Chile. For the artisan fishers this regulation has
represented a very profound change of their traditions and their activities (Servicio
País, 2001). In addition, the establishment of AAA allows the location of aquaculture
in some of the areas where fishers of Quellón traditionally extracted the resources.
This has affected the artisan fishing as it is described as follows.
The artisan fishing activity in the comuna has the following characteristic: fish
production accounts only for 1,6 % of the total production, the rest is constituted by
the extraction of benthonic resources (98,4%). This implies that the space where the
majority of fishers develop their activities is restricted by the depth of the sea,
because the extraction of benthonic resources is possible only up to a depth of 25
meters. Now, the salmon farming is restricted to the AAA which in Quellón
generally are situated as well up to a depth of 30 meters. That means that the salmon
farming areas overlap with areas where the fishers could extract benthonic resources.
48

As a reference, this spatial situation is shown on the map in the appendix 3. The
potential areas for artisan fishing activity of benthonic resources are drawn on the
AAA. For that purpose the bathymetric of the Chart 7015 of the Marine Under
Secretariat was used. An isoline in the depth of 25 meters represents the limit of the
area where the collection of benthonic resources could be realized by artisan fishers.
This shows that the area apt for diving in the inner sea of the island has an estimated
surface of 98.000 ha. Furthermore, it is estimated that approximately 90.000 ha of
them were classified as apt for aquaculture. This illustrates the important effects
which the establishment of the AAA has had for the artisan fishers. It is important to
mention that the estimation of the areas tries to show only the magnitude of the
problem. It does no try to present exact numbers. The precise areas not only for
aquaculture but also for artisan fishing can be smaller due to inappropriate conditions
of accessibility and depth, due to required minimal distances 15
between the
concessions and due to the location of benthonic shoals.
The aim of this mapping is to illustrate the dimension of the spatial problem
“occupation of the historical areas of artisan fishing” stated by the stakeholders.
In addition, the artisan fishers and the representative of the CRUBC declared that the
problem of competition for the use of coastal zones is explained by the high level of
coastal occupancy. It is important to mention that this space is used as well for
tourism, mussel breeding and discharge of wastewater, among others.
In order to evaluate the occupancy of the coastal zones, two different situations were
identified along the coastal zones of Quellón.
The first one is the situation of the coastal zone between Mollueco River and
Comogo Point: This zone is located in the inner sea of the comuna, on the east coast.
The estimated area apt for diving is 22.705 ha, the area apt for aquaculture is 22.000
15
The restriction of the aquaculture is given in the distance between the concession , which for water
and bottom portions means a minimum distance of 2.778,0 m(SD 320/2001). This distance is not
applied where there are geographical features (cape, peninsula, isthmus, island or island group)
between the borders of two concessions.
49

ha16
. In this zone, at least 38 centers of salmon farming are concentrated using an
estimated area of 421 ha. 8 of the main coves and the Quellón Port are located in this
coastal zone. The favorable accessing conditions explain the location of the majority
of the salmon centers in this zone. It is characterized by the presence of 5 islands,
fiords and channels where the major problems concerning space appear.
The second one is the situation of the coastal zones located between Cogomo Point
and Doce de Febrero Cape. This zone is located on the southern coast of the comuna.
The area apt for diving and aquaculture overlap completely. The number of salmon
farming centers located in this zone is unknown, but they are not more than 8. This
zone is characterized by being the southern coast of a big portion of land owned by
one person. It is used as a natural private park. The zone has only one cove in Inio
and the access is more expensive due to the distance to the principal port of Quellón
and the main roadway.
In general terms, the occupancy of economic activities on the first coastal zone is
denser than on the second. This explains why the main areas of conflict are located in
the first zone. These conflict areas are shown in the appendix 3. But the problem of
occupancy is related to the location of salmon farms over (or near) shoals of
benthonic resources that can be affected by certain wastes produced in the salmon
farms. With regard to the location of salmon farms over or near benthonic shoals
and their depletion, it is important to consider some important information mentioned
in the interviews that is presented in the table 5.5:
16
This area is located over the area limited with the depth of 25 m.
50

Table 5.5 Benthonic shoals depletion –key answers-
ARTISAN
FISHING
MUNICIPALITY SERNAPESCA CONAMA
Location of many
cages over shoals of
benthonic resources.
It is difficult to
prove the existence
of shoals once these
have been covered
with the sediment of
salmon farming.
Each shoal that dies
is diminishing the
availability of
resources for artisan
fishing.
There are cases of
disappearance of
shoals in the Cailín
island.
Collecting immature
species and pollution
destroy the fishing
resources.
The shoals are
principally located in
places protected
against extreme
weather conditions.
Fishers have
observed places
covered with 20cms
of sediment. This
provokes the death
of any kind of
organism.
The fishers
contribute to the
depletion of shoals.
There is an increased
number of fishers
but the shoals are
always the same.
There is no map of
shoals.
The productive
shoals of benthonic
resources, in
economic terms are
few.
There are salmon
farms located over
shoals of benthonic
resources.
The concept of
shoals of benthonic
resources is not
defined in the
Chilean law.
The fishers are
responsible in part
for the reduction of
fishing resources.
With the leftover of
salmon food and
faeces salmon
farming has affected
the ecosystem
conditions.
Salmon farms can
affect shoals even if
the shoals are not
located under the
cages.
The fishing authority
has not established
the places restricted
for salmon farming
due to location of
natural shoals.
Under secretariat of
fishing is responsible
for the location
analysis of shoals.
The main source of resources for artisan fishing in Quellón are the shoals of
benthonic resources. According to the answers of the interviewees, it can be
51

inferred that the benthonic shoals have suffered depletion not only due to salmon
farming but also due to artisan fishing.
The location of salmon farms on the sea impact on the marine ecosystem due to the
wastes generated by the leftover food given to the salmon and the faeces of the
animals. This generates a layer of sediment that creates anaerobic conditions and
covers the bottom of the sea and in some cases benthonic resources. With regard to
this point it is important to understand the process that damages of these shoals.
“…..it is expected that the chemical and biological demand of oxygen,
carbon, nitrogen and phosphorus increases in the beneath the farm areas
(Brown, 1987). In the areas where there are low levels of water flow the
accumulation of organic wastes can exceed the carrying capacity of carbon
reducing the oxygen and generating significant changes in the life in the
substrate. (Nash 2003). The reduction of oxygen produces death of benthonic
resources and fish (Wu 2003); reducing the native diversity. (SUBPESCA,
2004)” (Leon, 2006) (see figure 3).
Figure 3, Environmental impact on the sea bottom caused by location of
salmon farms……..
Source: Terram Publications
52

The location of salmon farms over shoals of benthonic resources is forbidden by law.
But what is a shoal of benthonic resources defined by law, and why are there AAA
over natural shoals?
Certainly there is not a specific concept of shoals of benthonic resources (Oyarzún,
personal interview, May 3, 2007). The definition of benthonic shoals is not stipulated
by the law. Characteristics such as species, minimal densities and areas, have not
been standardized. In addition, there are no public studies or maps that indicate the
zones where they are located (Oyarzún, personal interview, Bustos, personal
interview, May 3, 23, 2007). The lack of definition of the minimal characteristics of
benthonic shoals leads to incurring in subjective criterion, that weaken the possibility
of regulating the resource in a sustainable way. Indeed there are AAA and salmon
farms located over or near to the shoals. (Morales, Avendaño, Oyarzún, personal
interview, April 28, January 25, May 3, 2007). Although the characteristics of
benthonic shoals are not established, in the mind of the stakeholders there is an idea
of those characteristics and they know the location of these shoals. This research
tried to compile the principal areas where these shoals of benthonic resources are
located. The location of these areas corresponds to most sensitive zones of the
conflict.
Three stakeholders17
contributed to report the principal places of benthonic shoals.
The consensus between them lead to identify the following zones:
Cailín Island: There are benthonic shoals in the south and west of the island
however all the coastal zone of the island is apt for aquaculture. The AAA zone has a
surface of 4.352 ha and currently 4 farm centers carry out activities in this zone.
Chiguao Point and Channel: There are benthonic shoals in the coastal zones of
Chiguao Point and Chiguao Channel. Along the coast of the Point and on the channel
there are apt areas for aquaculture as well. The AAA corresponds to 871 ha. There
are three salmon farms in these AAA.
17
Artisan fishing sector, SERNAPESCA and Municipality are the closer stakeholders to the problem
of natural banks.
53

Chiguao
Point
Cailín
Chiguao
Channel
Source: Google Earth
Laitec Island: Location of benthonic shoals in the west and south side of the island,
all the coastal zone of the island is apt for aquaculture. The AAA is 2.139 ha. At the
present there are five salmons farms in the north and west side of the island.
Cailín
Coldita
Laitec
54

Chaullín Island: There are benthonic shoals in the south and west of the island. All
the coastal zone of the island is an AAA, this AAA has a surface of 1.556 ha. There
are two salmon centre farms on the west side of the island.
Guapiquilán and Esmeralda islands: There are benthonic shoals near the islands.
All the coastal zones of the islands are AAA. There is no information about the
number of salmon farms nearby. But according to the president of the artisan fishing
federation there are some salmon concessions in process in the coastal zones of these
islands.
Inio Sector: Some benthonic shoals are placed in this area. All the coastal zones of
Inio are apt for aquaculture. There is no information about the number of salmon
farms nearby.
Inio
Guapiquillan
These points show that the delimitation of AAA (for salmon farming) did not take
into account the placement of benthonic shoals. This fact contributes to making the
sustainability of benthonic resources more vulnerable.
But another aspect to consider in the depletion of the benthonic shoals is the impact
generated by the artisan fishing. This impact is related to the amount and maturity
55

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