WCPFC's discussions on crew labour standards was accelerated in 2018 with the Commission's adoption of Resolution 2018-01 on Labour Standards for Crew on Fishing Vessels. Initiated by members of the Pacific Islands Forum Fisheries Agency (FFA), the Resolution reflected the need that human rights abuses on fishing vessels operating in the Pacific must be addressed.
The Labour Standards Intersessional Working Group was established in 2020 to improve conditions for fishing crew in the Western and Central Pacific Ocean. Co-led by New Zealand and Indonesia, the group examined and recommended ways to ensure safe, fair, and decent working conditions on tuna vessels. Priorities included preventing exploitative practices, improving safety and welfare, and aligning ethical conduct with sustainable fisheries. The work supported WCPFC’s mission by addressing the human side of fishing.
Background and Purpose
Rising concern in the late 2010s about labor abuses on distant-water vessels led WCPFC to act. Reports covered withheld wages, excessive hours, abuse, and trafficking. A 2018 non-binding resolution urged fair conditions. The Forum Fisheries Agency introduced Harmonised Minimum Terms and Conditions for crew in national waters. Gaps remained on the high seas and across jurisdictions.
In 2020, the Commission formed the Labour Standards IWG, co-chaired by Indonesia and New Zealand, to develop a binding Conservation and Management Measure on minimum crew standards. The group translated international principles such as ILO C188 and UNCLOS obligations into practical regional rules. Membership in the intersessional working group included Commission members, territories, industry, and civil society. The group emphasized collaboration, feasibility for small island developing states, and capacity building for enforcement and monitoring.
Why Focus on Labour Standards?
Crew welfare often lagged behind attention to stocks and gear. The IWG addressed this imbalance.
- Reality for crew at sea: Lapses in safety risk injury or death. Clear standards and enforcement reduce these harms.
- Why WCPFC is involved: Flag and coastal States hold primary responsibility, but vessels move between high seas and multiple zones. A regional measure closes gaps and levels the playing field. Abuses often align with IUU fishing, so labor standards also improve compliance. Common rules on contracts, safety equipment, reporting of serious incidents, and zero tolerance for forced labor support members’ international commitments and market expectations.
Benefits include ethical protection of crew, stronger credibility of the tuna fishery, and better compliance and data. Rested, trained crew support reporting and cooperation with observers. Clear incident procedures improve accountability, including search and rescue and mandatory notifications. Shared standards promote capacity building and practical implementation across the region.
Historical Highlights
- 2017 – Observer protection precedent: WCPFC adopted CMM 2017-03 on observer safety, showing agreement on human welfare measures and setting a model for wider crew protections.
- 2018 – First crew welfare recognition: WCPFC15 adopted Resolution 2018-01 encouraging basic labor standards. The FFA introduced regionally Harmonised Minimum Terms and Conditions for crew in national licensing. Momentum grew for stronger action.
2020 – IWG established: WCPFC17 tasked the IWG to draft a binding measure. Co-chairs Indonesia and New Zealand led work amid public reports of abuse and deaths, underscoring urgency.
- 2021 – Draft measure: Consultations and a virtual workshop produced an initial draft covering written agreements, timely wages, repatriation, zero tolerance for forced labor and abuse, safety procedures, and incident reporting. Scope across high seas and EEZs remained under discussion. TCC reviewed progress and extended work.
- 2022 – Development and interim clarifications: A virtual meeting addressed scope, roles of States, vessel operators, and crew providers, and enforcement of contracts. Revisions strengthened prohibitions on trafficking and forced labor, clarified protections for minors, and outlined port State pathways for complaints. TCC18 welcomed progress; WCPFC19 extended the plan into 2023 and confirmed new New Zealand co-chair Sarah McAvinchey.
- 2023 – Resolving issues: A 7 September virtual meeting refined remaining points, including area of application and responsibilities of crew recruitment agencies. Provisions on safe disembarkation and consular access were discussed. A near-final draft advanced to WCPFC20 for further work.
- 2024 – Adoption of crew labour standards: WCPFC21 in late November adopted CMM 2024-04, the first binding regional crew welfare standards. Requirements include written contracts in a language the crew understands, prohibitions on forced labor, debt bondage, trafficking, and child labor, decent living and working conditions, reporting of serious injuries, man overboard, and deaths, cooperation in search and rescue, and non-retaliation for grievances. Operators must pay wages in full and on time, allow disembarkation for medical care or abuse reports, and facilitate communication. The measure focuses on high seas and activities outside national jurisdictions while encouraging uniform application elsewhere. Members agreed to review and improve the measure over time.
Recent Developments and Future Outlook
In 2025, focus shifts to preparation for implementation of the new measure, which enters into force in 2028. Members are incorporating CMM 2024-04 into national laws and licensing, training vessel operators, and establishing monitoring and enforcement processes. Some are establishing reporting channels such as hotlines and clear penalties for violations. The Secretariat and FFA are supporting capacity building. Annual compliance reviews will now include crew labor reporting.
Many members and industry stakeholders began voluntary improvements earlier, including alignment with ILO C188, no-fee recruitment, electronic time-keeping, and third-party audits. Other tuna RFMOs are advancing similar efforts, and external regulators now scrutinize labor conditions. A WCPFC measure supports market access and reduces risk of trade actions tied to abuse.
For the general public: Tuna from the Western and Central Pacific is expected to meet biological and social sustainability standards. Over time, safer conditions may attract more Pacific Islanders to seafaring. Members overcame legal and practical differences through steady negotiation and shared goals to adopt a measure in 2024. Future refinements may include stronger verification, structured interviews with crew, and incentives for strong performers. The foundation is set and crew welfare is now a core element of fisheries management in the region.