Report on Jurisdictional Challenges and Marine Conservation at Illescas National Reserve, Peru

1.0 Executive Summary

This report details the significant challenges to marine conservation at the boundary of Peru’s Illescas National Reserve. A critical jurisdictional gap, where the reserve’s authority is limited to terrestrial areas, severely hampers efforts to combat illegal and destructive fishing practices. These activities directly threaten the region’s rich biodiversity and undermine Peru’s commitment to the United Nations Sustainable Development Goals (SDGs), particularly SDG 14 (Life Below Water), SDG 15 (Life on Land), and SDG 16 (Peace, Justice and Strong Institutions).

2.0 Jurisdictional Gaps and Enforcement In-Efficiencies

The primary obstacle to effective conservation is the legal designation of Illescas National Reserve as an exclusively terrestrial protected area. This limitation creates a critical enforcement vacuum in the adjacent marine ecosystem.

• Limited Authority: Park rangers from the National Service of Protected Natural Areas of Peru (SERNANP) lack jurisdiction over marine waters, preventing them from intervening directly against illegal fishing activities observed at the reserve’s edge.
• Enforcement Challenges: Confrontations with fishers using illegal gear are frequent but are limited to persuasion and warnings. Effective enforcement requires coordinated, multi-agency operations, which are conducted periodically but are insufficient for continuous protection.
• Impact on SDG 16: This situation highlights a weakness in institutional frameworks, failing to provide effective and accountable governance for a critical ecosystem, which is a core target of SDG 16 (Peace, Justice and Strong Institutions).

3.0 Threats to Marine and Coastal Ecosystems (SDG 14 & SDG 15)

The marine area adjacent to Illescas is a biodiversity hotspot, but it faces severe threats from unregulated fishing, directly contravening the principles of SDG 14 (Life Below Water).

3.1 Illegal and Destructive Fishing Practices

Several illegal fishing methods are prevalent in the waters bordering the reserve, causing significant ecological damage.

1. Chinchorro Nets: The use of these nets, banned in Peru since 2009, is widespread. They are characterized by low selectivity, leading to high levels of bycatch and the discard of non-commercial or juvenile fish, which undermines SDG Target 14.4 (End overfishing, illegal, unreported and unregulated fishing).
2. Trawling: Trawlers operate within the prohibited five-nautical-mile zone, causing severe damage to the seabed and marine habitats, further violating SDG Target 14.2 (Protect and restore ecosystems).
3. Boyador Method: This indiscriminate technique uses vibrations to stun marine life, affecting fish, sea lions, and birds, contributing to biodiversity loss.

3.2 Biodiversity at Risk

The Illescas marine zone is a “Temperate-Tropical Transition Area,” hosting a unique mix of species from both cold and warm currents. The lack of protection threatens several key species, impacting both SDG 14 and SDG 15 (Life on Land).

• Vulnerable Species: The area is a habitat for vulnerable species such as the South American sea lion (Otaria flavescens) and the Humboldt penguin (Spheniscus humboldti), which is classified as endangered under Peruvian law.
• Terrestrial-Marine Link: The reserve is the only coastal location in Peru with a confirmed Andean condor (Vultur gryphus) nest, highlighting the interconnectedness of the terrestrial and marine ecosystems that must be managed holistically to achieve SDG 15.1 (Conserve and restore terrestrial and freshwater ecosystems).

4.0 Multi-Stakeholder Collaboration and Proposed Solutions (SDG 17)

In response to these challenges, collaborative efforts are underway, reflecting the importance of SDG 17 (Partnerships for the Goals). However, a more permanent solution is required to secure the long-term health of the ecosystem.

4.1 Current Conservation Initiatives

• Joint Patrols: Between 2022 and 2024, eight joint patrols were conducted involving SERNANP, environmental police, prosecutors, and the Ministry of Production.
• Community Engagement: SERNANP is working with nine artisanal fisher groups to promote responsible practices, such as respecting minimum catch sizes and avoiding destructive gear, thereby supporting sustainable livelihoods in line with SDG 8 (Decent Work and Economic Growth).
• Scientific Research: Organizations like The Nature Conservancy (TNC) are collaborating with SERNANP to expand scientific knowledge of the marine ecosystem, a key component of SDG Target 14.a.

4.2 Recommendations for Future Action

Conservation experts and authorities have identified the urgent need for a formal marine protected area adjacent to the existing reserve.

1. Establish a Marine Protected Area: The creation of a new, separate marine protected area is the recommended legal pathway to extend protection to the waters off Illescas. This aligns directly with SDG Target 14.5 (Conserve at least 10% of coastal and marine areas).
2. Strengthen Institutional Coordination: Enhance the frequency and effectiveness of joint enforcement operations to create a stronger deterrent against illegal fishing.
3. Support Sustainable Fisheries: Continue to build partnerships with artisanal fishing communities to foster a culture of conservation and ensure that economic activities support, rather than degrade, marine biodiversity.

Analysis of Sustainable Development Goals in the Article

1. Which SDGs are addressed or connected to the issues highlighted in the article?

The article highlights several interconnected issues that relate to multiple Sustainable Development Goals (SDGs). The primary focus is on marine conservation and illegal fishing, but it also touches upon biodiversity, governance, and livelihoods.

• SDG 14: Life Below Water: This is the most central SDG addressed. The article focuses on the threats to marine biodiversity in the waters off Illescas National Reserve, specifically from illegal and destructive fishing practices like the use of chinchorros and trawling. It discusses the need to protect marine ecosystems and sustainably manage fisheries.
• SDG 15: Life on Land: Although the main conflict occurs in the marine environment, the article is set in the context of the Illescas National Reserve, a terrestrial protected area. It mentions the protection of terrestrial species like the Andean condor and highlights the importance of the coastal zone, which is the interface between land and sea.
• SDG 16: Peace, Justice and Strong Institutions: The article details significant institutional and governance challenges. The jurisdictional limitation of the park rangers, who cannot act in the marine area, points to institutional weaknesses. The conflict between fishers and authorities, and the need for coordinated law enforcement involving police, prosecutors, and government ministries, directly relate to the rule of law and institutional effectiveness.
• SDG 8: Decent Work and Economic Growth: The socio-economic dimension of the conflict is mentioned when a fisher states he engages in illegal fishing because he “has a family to feed.” This points to the tension between environmental regulations and the livelihoods of local communities, touching upon the need for sustainable economic alternatives.
• SDG 17: Partnerships for the Goals: The article provides examples of multi-stakeholder collaboration to address the conservation challenges. The joint patrols involving SERNANP, environmental police, the prosecutor’s office, and the Ministry of Production are a form of public partnership. The collaboration between SERNANP, The Nature Conservancy (TNC), and local artisanal fisher groups is another example of a partnership between public, private (NGO), and civil society actors.

2. What specific targets under those SDGs can be identified based on the article’s content?

Based on the issues discussed, several specific SDG targets can be identified:

1. SDG 14: Life Below Water

   • Target 14.2: “By 2020, sustainably manage and protect marine and coastal ecosystems to avoid significant adverse impacts…” The article’s call from conservationists for the “urgent need to safeguard this important marine area” and the description of damage to the seabed from chinchorros directly align with this target.
   • Target 14.4: “By 2020, effectively regulate harvesting and end overfishing, illegal, unreported and unregulated (IUU) fishing and destructive fishing practices…” The entire focus on confronting fishers using banned chinchorros, illegal trawling within five nautical miles, and the indiscriminate boyador method is a direct reflection of this target.
   • Target 14.5: “By 2020, conserve at least 10 per cent of coastal and marine areas…” The discussion about Illescas being only a terrestrial reserve and the proposal to establish a separate, adjacent marine protected area speaks directly to the goal of increasing the coverage of marine protected areas.

2. SDG 15: Life on Land

   • Target 15.5: “Take urgent and significant action to reduce the degradation of natural habitats, halt the loss of biodiversity and… protect and prevent the extinction of threatened species.” The article mentions the presence of vulnerable or endangered species such as the South American sea lion, Humboldt penguin, and the Andean condor within the reserve, and the conservation efforts are aimed at protecting their habitats.

3. SDG 16: Peace, Justice and Strong Institutions

   • Target 16.6: “Develop effective, accountable and transparent institutions at all levels.” The article highlights an institutional gap where the reserve staff’s “ability to act… is limited, as the marine area is outside their jurisdiction.” This points to a need for more effective and integrated institutional arrangements.
   • Target 16.a: “Strengthen relevant national institutions… to combat… crime.” The implementation of “eight joint patrols… with environmental police, the Specialized Environmental Prosecutor’s Office, the Regional Directorate of Production… and staff from Illescas” is a direct action to strengthen institutional capacity to combat the environmental crime of illegal fishing.

3. Are there any indicators mentioned or implied in the article that can be used to measure progress towards the identified targets?

The article contains both explicit and implied indicators that could be used to measure progress:

• For Target 14.4 (End IUU Fishing):
  • Explicit Indicator: The number of enforcement actions taken. The article states that “eight joint patrols were carried out” between 2022 and 2024. This is a direct measure of enforcement effort.
  • Implied Indicator: The incidence of illegal fishing activities. The article notes that surprise patrols have “succeeded in reducing the incidence of chinchorro fishing,” suggesting that tracking the frequency of these events is a key metric.
  • Implied Indicator: The amount of bycatch. The article describes chinchorros as a “very low selectivity” method and mentions how fishers “toss several small fish they considered worthless.” Measuring the volume and composition of this bycatch would be an indicator of the impact of destructive fishing.
• For Target 14.5 (Conserve Marine Areas):
  • Implied Indicator: The coverage of marine protected areas. The article clearly states the marine area is currently unprotected. Progress would be measured by the official establishment and demarcation of a marine protected area adjacent to Illescas, as proposed in SERNANP’s Master Plan.
• For Target 15.5 (Protect Threatened Species):
  • Implied Indicator: Population status of threatened species. The article mentions the presence of Humboldt penguins (vulnerable), South American sea lions (vulnerable in Peru), and Andean condors. Monitoring the population sizes and trends of these species would serve as an indicator of conservation success.
  • Implied Indicator: Fish stock levels. The observation from artisanal fishers that catches “are harder to come by these days, suggesting populations may be on the decline,” points to fish population levels as a critical indicator of ecosystem health and the impact of overfishing.

4. Table of SDGs, Targets, and Indicators

Source: news.mongabay.com