CAKALELE, VOL. 9, NO. 2 (1998): 85–97 © The authors

Rape and Run in : Exploitation of Living Marine Resources in Eastern

SHAUN M. MOSS HAWAII PACIFIC UNIVERSITY

MARK VAN DER WAL AIDENVIRONMENT, AMSTERDAM

The islands of eastern Indonesia are projected to experience the most rapid human population growth in the Indonesian archipelago within the next few decades, and development associated with this growth will exert increased pressure on the living marine resources there. Unfortu- nately, rampant exploitation of many of these resources is already oc- curring, as short-term economic gain takes precedence over long-term sustainability. Living marine resources currently being exploited in- clude organisms that exhibit low fecundity or other life-history strate- gies that make them vulnerable to local extinction, such as dugongs and sea turtles. In addition, relatively prolific organisms are at risk because of the use of highly efficient, and often illegal, extraction techniques. Valuable coastal and marine habitats also are in jeopardy because of anthropogenic activities such as trawling and cyanide fishing. Rational and sustainable policies must be enacted and enforced if Indonesia is to protect and preserve its valuable marine resources.

Introduction Indonesia is the world’s largest archipelago and is situated at the center of the most species-rich marine biogeographical region on earth. Indone- sia’s seas are home to more than 4,000 species of fish (Burgess and Ax- elrod 1972) and over 240 species of coral (Veron 1986), and inshore waters are rich in mangroves, seagrass beds, and coral reefs. In an effort to preserve their living marine resources, the Indonesian government has over the past several decades enacted legislation to protect both individ- ual species and specific habitats from anthropogenic exploitation and destruction. {PAGE PAGE } CAKALELE, VOL. 9, NO. 2

In 1979, Indonesia became party to the Convention on International Trade in Endangered Species (CITES), and it has supported the 1992 United Nations Conference on Environment and Development action program (Agenda 21). Currently, Indonesian laws protect more than 17 marine mammals, 5 marine turtles, 3 marine arthropods, and 12 marine molluscs, as well as numerous freshwater and terrestrial species of flora and fauna (Ministry of Forestry 1991). In addition, there are presently 24 marine protected areas throughout the archipelago covering about 2.8 million hectares (Abdullah and Sumarna 1993), and plans to establish an additional 30 million hectares have been proposed. Despite this arsenal of laws and regulations, Indonesia is experiencing rampant exploitation of many living marine resources, as well as large-scale destruction of critical marine and coastal habitats. These activities rob Indonesia of her biological wealth and threaten the livelihood of her peoples. In this paper, we document the exploitation of living marine resources in Maluku Province in eastern Indonesia. This region is projected to experience the most rapid human population growth in Indonesia within the next few decades (Sugandhi 1993), and will likely play an increasingly important role in the nation’s economy. However, devel- opment associated with this growth will exert increased pressure on the living marine resources there, and may jeopardize vulnerable marine habitats. By documenting the exploitation of living marine resources in Maluku, we hope to bring attention to the need for rational, sustainable, and enforceable policies that will help guide development of this region into the 21st century.

Dugong The dugong, Dugong dugon, is the only herbivorous mammal that is ex- clusively marine and typically inhabits shallow coastal waters where it feeds almost entirely on seagrasses. Dugongs were once common throughout eastern Indonesia and were hunted for their meat and oil by traditional harpoon methods (Compost 1980). Although accurate popu- lation estimates for dugongs in Maluku currently are lacking, interviews with fishermen and anecdotal information about dugong catch suggest that their numbers are declining to very low levels, despite protection by Indonesian and international laws. Compost (1980) estimated that the annual dugong catch from the main fishing areas of Aru (southeast Ma- luku) ranged from 545 to 1,020 individuals in the late 1970s, and noted EXPLOITATION OF MARINE RESOURCES IN MALUKU {PAGE PAGE } that dugongs were “still quite common in Aru.” More recently, however, Brasseur and de Jong (1991) reported that only 59–90 dugongs were caught in east Aru in 1989, and that these numbers dropped to 29–36 dugongs in 1990. Their estimates were obtained by interviewing people from 14 villages between Pulau Karawei and Pulau Workai, which con- stitutes almost a third of the east Aru coast. In central Maluku, research- ers observed 17 dugongs during an aerial survey over the islands of Am- bon, Haruku, Saparua, and Nusa Laut in 1990 (de Iongh et al. 1995). Two years later, they observed only 10 individuals inhabiting the same waters and estimated a minimum population size of 22–37 dugongs oc- curring in their study area. One of us (MW) now estimates that there are no more than 10 dugongs inhabiting the nearshore waters of these central . This estimate is based on observations of dugong feeding tracts in seagrass beds and interviews with local fishermen. Because of their low numbers, it is unlikely that dugongs are hunted deliberately now in Maluku. Instead, incidental capture by shark and turtle fishermen is the likely cause of declining dugong populations, al- though habitat destruction and coastal pollution may contribute. Adult dugongs are used mostly for their meat and long tusks, whereas young dugongs are reportedly used to obtain their tears (air mata duyong), which are believed to possess aphrodisiac qualities. Dugong tusks are fashioned into highly prized cigarette holders and sold openly by shop- keepers in Tual (Pulau Kei) and Ambon. A large dugong tusk can cost as much as Rp350,000, which is considerably more than the average monthly wage of an Indonesian fisherman. The high price for dugong tusks provides a strong economic incentive to continue harvesting du- gongs in eastern Indonesia, even if capture is incidental. This practice may ultimately lead to the local extinction of these rare mammals be- cause of their low population densities and the fact that they bear few young and are slow to reach reproductive age.

Green turtle The green turtle, Chelonia mydas, is a circumtropical reptile that mi- grates between shallow feeding grounds and nesting beaches, a distance that may exceed 2,500 km. Green turtles have long been hunted both for subsistence and for commercial trade, and these activities have resulted in declining populations worldwide (Center for Marine Conservation 1993). In Maluku, the beaches on Enu, Jeh, and Karang in southeast Aru {PAGE PAGE } CAKALELE, VOL. 9, NO. 2 are considered to be the most important nesting areas for green turtles and have been the site of several census surveys. Compost (1980) re- ported that during a 1979 survey an average of 50–100 turtles nested on the beaches of Enu nightly. A decade later, researchers reported 30 nestings per night at Enu and Karang combined, while in 1991, only 14 nestings per night were observed on these same islands (Wenno et al. 1993). In the waters of Maluku, one conservative estimate is that 6,000– 8,000 green turtles are caught annually for the Balinese market (Schulz 1993). Bali, where turtle meat is used for traditional and religious cere- monies, is considered to be the center of the most intensive turtle slaughter worldwide (IUCN/WWF 1984). According to the Head of Re- ligious Affairs in Bali, 2,000–6,000 turtles are needed annually for these ceremonies. However, government statistics indicate that the number of turtles landed at Bali’s main harbor (Tanjung Benoa) was 24,357 in 1991, 19,297 in 1992, and 18,788 in 1993, and these are likely to be un- derestimates. Excess turtle meat is sold at foodstalls, markets, and res- taurants; shipped to ; or exported abroad. Inedible turtle products, such as bone, skin from flippers, and dorsal scutes, also have commercial value, as do whole stuffed turtles, which are sold as curios to both domestic and overseas markets. One of the most disturbing observations we made during our stay in Maluku was the harvesting of adult turtles and the poaching of turtle eggs in the Aru Tenggara Marine Reserve. This reserve covers an esti- mated 114,000 hectares of island ecosystems in southeast Aru and was added to the list of protected marine national parks of Indonesia in 1991. In October 1993, we boarded a fishing boat anchored in the reserve that held 40 live adult green turtles. The boat’s captain informed us that he had been turtle hunting in these waters for about two weeks and had an additional 60 adults trapped in a bamboo pen nearby. Confiscated rec??ords revealed that this one boat had been involved in the trade of over 1,400 turtles over the last three years, all of which were destined for the Balinese market. It is likely that many such boats operate in the marine reserve with impunity because the Indonesian government lacks the resources or political will necessary to monitor this remote part of the archipelago. In addition to the harvesting of adult turtles, egg collecting is wide- spread throughout the reserve. Along the shores of Enu and Karang, we EXPLOITATION OF MARINE RESOURCES IN MALUKU {PAGE PAGE } observed the scattered remains of female turtles whose plasterons had been cut off to facilitate egg removal. Even if a female has the opportu- nity to lay her eggs, about 90% of the nests are ransacked by itinerant fishermen and crews of large fishing vessels who anchor on the lee side of these islands (Schulz 1993). The continued harvest of adult turtles and eggs, coupled with incidental capture by trawlers and a high natural mortality, may result in the extinction of green turtles from eastern In- donesia. This may occur despite the fact that the green turtle is listed as endangered in the International Union for Conservation of Nature and Natural Resources (IUCN) Red Data Books, and is included in Appendix I of CITES. However, there is no national policy in place designed to protect this species domestically. Such a policy needs to be implemented and enforced if these animals are to survive, and international coopera- tion must exist because of their migratory behavior.

Grouper Grouper is a common reef fish belonging to the family Serranidae, which includes over 150 species (Kuiter 1992). Several of these species are popular marine food fishes that can command prices in excess of US$100 per serving in the restaurants of Hong Kong, Malaysia, Singa- pore, and China. Grouper may be caught legally using a variety of nets, traps, or handlines, but these types of gear are ineffective for the larger, economically attractive fish, such as the panther grouper, Cromileptus altivelis. Sodium cyanide (NaCN) and other poisons are used routinely as an anesthetic to capture live grouper for the restaurant industry, as well as to collect live reef fish for the aquarium trade. Cyanide not only harms the captured fish, which may die up to one month later, but can kill other members of the coral reef community, including the coral polyps. In addition, large pieces of coral are often broken by divers to gain access to the drugged fish that seek refuge among the coral heads. In Indonesia, it is illegal to use fishing techniques that damage or pollute the environment, yet interviews with dive-boat operators and local villagers suggest that the destruction of coral reefs is taking place on an immense scale in Maluku because of rampant cyanide fishing for grouper. One dive-boat operator leading tours in Maluku and Irian Jaya recently testified that his business is in jeopardy because formerly pris- tine reefs have been turned into coral rubble. In addition, he noted a sharp decline in the number of grouper, turtles, and sharks at certain dive {PAGE PAGE } CAKALELE, VOL. 9, NO. 2 sites in the last two years. The dive-boat operator also reported that he frequently has observed the Indonesian navy (PUSKOPAL) directly in- volved in grouper fishing, and this allegation has been corroborated by reports from other sources. Villagers from Pulau Koon in southeast Seram (central Maluku) re- ported a 90% decline in the number of grouper off their coast since Oc- tober 1993, when a grouper fishing company began operations there. They also complained of extensive damage to their coral reefs resulting from the company’s illegal fishing activities. In September 1994, vil- lagers from Pulau Buano in northwest Seram reported seeing a grouper fishing boat operating off their coast. An interview with the boat’s cap- tain revealed that three to four tons of grouper and Napoleon wrasse, Cheilinus undulatus, are caught each month and transported live to Hong Kong. One mother ship can carry 3,000 live fish from Maluku to Hong Kong in 10 days, with a mortality rate of only 1–2% (Braley 1993). Major cyanide fishing operations have also been reported around Ambon and Haruku in central Maluku, and around Kei Kecil, Kei Besar, north- ern Aru, and Tanimbar in southeast Maluku. It is now clear that the trade in live grouper is a highly professional, well-organized, and rapidly expanding business in eastern Indonesia. Unfortunately, the Indonesian government has been slow to intervene. Recently, the export of live Napoleon wrasse has been banned by the Minister for the Environment, but enforcement of such a ban is difficult as young Napoleon wrasse are commonly reported as groupers in export statistics (Johannes 1995). Cyanide fishing will likely continue at the expense of the marine environment and coastal villagers who depend on the resources of the reef for their livelihood.

Shark Shark fishing has been a source of income for the fishermen of Southeast Maluku for centuries, and this activity continues today (Wenno et al. 1993). Sharks are highly prized for their fins and tails, which make their way into lucrative overseas markets. A bowl of shark’s-fin soup may cost more than US$100 per serving and contain only 20 grams of dried shark’s fin (Newman 1993). Sharks are typically caught in “Taiwan nets” (stretched mesh size of 25–30 cm) that are set in shallow waters overlying seagrass beds. Fins and tails often are removed onboard the fishing vessel, while the remainder of the carcass is discarded overboard EXPLOITATION OF MARINE RESOURCES IN MALUKU {PAGE PAGE } because of limited local demand for shark meat and the high cost of transporting the meat to markets on Java (Wenno et al. 1993). We interviewed one dive-boat operator in Maluku who has seen piles of finned shark carcasses on the sea floor. With a 400-kg shark yielding less than 16 kg wet weight of shark’s fin (Newman 1993), this process of “finning” is tremendously wasteful. Catch figures and population estimates of sharks inhabiting the waters of Maluku are not available. However, according to local shark fish- ermen, shark catches have declined in recent years and fishermen have to venture farther from shore to catch smaller-sized sharks. According to government sources, 17 permits for shark fishing were issued in 1993 for the Arafura Sea, but many more illegal vessels are in operation. In addition, we have seen shark fishermen plying the waters of the Aru Tenggara Marine Reserve, where the potential for incidental dugong and turtle capture is relatively high. In light of the tremendous Asian market for shark’s fin, it is unlikely that demand for these top-level predators will decrease in the near future, and the ecological impact of this practice is unknown.

Shrimp The shrimp trawling industry in Indonesia experienced rapid growth after commercial trawling began in 1966, and was stimulated by an increased foreign demand for shrimp products. Uncontrolled expansion of the industry eventually led to violent conflicts between artisinal fishermen and trawl operators, and culminated in government intervention. In Presidential Decree No. 39/1980, the Indonesian government banned trawl fishing in all territorial waters by 1981, except those in Maluku and Irian Jaya (Chong et al. 1987). Shrimp trawling in eastern Indonesia is subject to a number of regulations, including the licensing of vessels to limit access to the fishery. According to a 1993 government report, 64 licensed shrimp trawlers (over 30 gross metric tons) plied the waters of Maluku, especially the Arafura Sea, in search of shrimp during that year. However, many illegal foreign fishing vessels and unregistered Indone- sian trawlers enter the fishery, resulting in excessive fishing effort. Al- though penaeid shrimp typically lack stock-recruitment relationships, there have been reports that overfishing in this region has led to a decline in shrimp biomass, a change in the species composition of the catch, and a decrease in the size of individual shrimp caught (Naamin 1987). {PAGE PAGE } CAKALELE, VOL. 9, NO. 2

Whenever trawling occurs, large quantities of incidentally caught organisms (by-catch) are hauled up with the target species. According to shrimp trawl operators and fisheries officers in Maluku, the by-catch to shrimp ratio in the Arafura Sea ranges from 8:1 to 15:1. The large varia- tion in this ratio may result from a number of factors, including different fishing grounds, engine power, and seasons. Assuming a by-catch-to- shrimp ratio of 9:1, and given that 7,896 metric tons of shrimp were caught in Maluku in 1992 (mostly Penaeus monodon, P. merguiensis, P. semisulcatus, and Metapenaeus spp.), the estimated annual by-catch for this region was 71,064 metric tons for that year. Unfortunately, most by- catch is discarded overboard because there is little economic incentive to process it. At Benjina in Aru, there is one company that produces about 150,000 kg of fishmeal per month using by-catch from shrimp trawlers (Wenno et al. 1993), but we were told that this facility is operating far below capacity. The species composition of shrimp by-catch exhibits great spatial and temporal variability, and can include hundreds of species of fish and in- vertebrates, as well as marine turtles (Andrew and Pepperell 1992). Ac- cording to Indonesian law, shrimp trawl operators are required to modify their nets with exclusion devices to minimize the quantity of by-catch, but this regulation is usually ignored because operators claim that such devices reduce fishing efficiency. The tremendous amount of biomass that is discarded as a result of current shrimp trawling practices is un- available to small-scale fishermen, who are thus deprived of potential income and a source of cheap protein. In addition to the lack of compli- ance regarding exclusion devices, violations of the 10 m isobath are common, resulting in the destruction of coral reefs and seagrass beds, and we have seen shrimp trawlers operating in the Aru Tenggara Marine Reserve. There is an urgent need to intensify monitoring, control, and surveillance activities in the waters of Maluku to minimize the negative impacts these illegal fishing activities have on the marine environment and subsistence coastal communities.

Giant clams Giant clams are found in the shallow waters of Indo-Pacific coral reefs and are represented by seven species in two genera; Tridacna gigas, T. derasa, T. squamosa, T. maxima, T. crocea, Hippopus hippopus, and H. porcellanus. These large molluscs have long been a source of food for EXPLOITATION OF MARINE RESOURCES IN MALUKU {PAGE PAGE } the peoples of eastern Indonesia (Polunin 1983), and active trade in clam meat and shell continues today despite Indonesian and international laws that regulate trade in giant clam products. Although reliable population estimates for giant clams in eastern Indonesia are scarce, Braley (1993) conducted an underwater survey off Pulau Kei and Tanimbar in southeast Maluku. He found “only about one live Tridacna gigas per 5–8 hectare of good coral reef area” off Pulau Kei, and no live specimens of T. gigas were seen during the Pulau Tanimbar survey. In addition, the highest density of giant clams (combining all seven species) at any one site off Pulau Kei was 20 individuals per hectare. However, of the 13 sites surveyed in the waters off this island, 9 sites had densities of less than 10 clams per hectare. In an older survey, Taufik (1987) reported seeing no T. gigas off the coast of southeast Aru, although specimens of T. squamosa, T. crocea, and H. hippopus were present at that time. Despite low population densities, we were told that about 80 tons of giant clam shell were sold to Butonese traders by Tual fishermen in 1990, and transported to Surabaya as raw material for floor tiles. It is not clear whether these shells came from freshly killed clams or were fossil shells dug out of the reefs. In addition, about 800 kg of giant clam ad- ductor muscle were sold by Tual fishermen to Chinese traders during a six-week period in 1992. The cost to these traders ranged from Rp20,000–40,000 per kilogram of clam meat. Both meat and shell prod- ucts from giant clams, as well as live juvenile clams for the aquarium trade, are earmarked for lucrative overseas markets, where foreign trad- ers stand to make considerable profits at the expense of a threatened In- donesian resource.

Trochus The gastropod, Trochus niloticus, is an herbivorous grazer that has long served as a source of food for coastal villagers in eastern Indonesia and of mother-of-pearl for Asian and European markets (Wells and Hanna 1992). According to some sources, the harvesting of trochus in Maluku was regulated by a local system of rules, or sasi, since the 17th century (Zerner 1991). Sasi refers to locally recognized forms of community regulation, ownership, and management of natural resources in Maluku, including inshore marine resources, and may provide a framework for the equitable allocation of these resources to local villagers on a sustain- {PAGE PAGE } CAKALELE, VOL. 9, NO. 2 able level. However, in recent decades, there has been a reallocation of the rights to trochus stocks and of the benefits accrued from them. In 1969, government officials asserted monopoly rights over trochus stocks inhabiting waters near the village of Nolloth, on Pulau Saparua in central Maluku (Zerner 1991). These stocks were previously considered common property accessible to all villagers. Government seizure of the rights to harvest trochus likely resulted from the realization by govern- ment officials that a substantial profit may be made from the export of trochus shell. As a consequence of this reallocation of rights, and of the manipulation and centralization of sasi by the formal government, the amount of trochus harvested in Nolloth village declined by 95% from 1969 to 1990 (Andamari et al. 1991). The proximate cause of this decline may be attributed to a decrease in the interval between successive harvests. Between 1969 and 1990, the interval between harvests was shortened from three years to one year in an attempt to maximize profits. Unfortunately, this practice effectively reduced the “environmental rest period” during which time stocks could be replenished. Declining trochus stocks are not endemic to Pulau Saparua. Govern- ment regulation of trochus and the use of scuba gear have contributed to population declines throughout Maluku in recent years (Zerner 1991). This is borne out by government statistics, which indicate a 62% decline in trochus-shell production for all of Maluku in 1989–1990 (Braley 1993). If the Indonesian government continues to exert its influence on the harvest of trochus in Maluku, it must accept responsibility for the implementation of policies that will ensure sustainability of this valuable resource.

Conclusions The organisms described above do not represent an exhaustive list of all living marine resources currently being exploited in Maluku. Sea cu- cumbers, or teripang, are harvested from the sea floor and sold abroad. Pearl oysters are collected by scuba divers and are either transplanted to multinational oyster farms for pearl cultivation or sold for mother-of- pearl. Large schools of live baitfish, representing 12 species, are caught in lift nets or beach seines for the pole-and-line tuna fishery, and a vari- ety of reef fauna is harvested for the aquarium trade. Not only are individual species being threatened, but entire coastal and marine habitats are in jeopardy. The extirpation of mangrove forests EXPLOITATION OF MARINE RESOURCES IN MALUKU {PAGE PAGE } to build shrimp aquaculture ponds (tambak) has already occurred on a large scale in western Indonesia, and is expected to continue in Maluku and Irian Jaya in the future. The decimation of coral reefs from destruc- tive fishing techniques, such as cyanide and dynamite fishing, is occur- ring at an alarming rate, and damage to seagrass beds from illegal trawling activities has been observed. Clearly, short-term economic gain is responsible for this “rape and run” mentality, but there are some very serious long-term consequences. Organisms that exhibit low fecundity or other life-history strategies that make them vulnerable to overexploi- tation are in jeopardy of becoming locally extinct. Even relatively pro- lific organisms are at risk because of the use of modern extraction tech- niques. Scuba gear has greatly expanded the activities of divers, both temporally and spatially, and nylon nets, sonar, and high-powered boat engines have made fishing a highly efficient endeavor. Despite this bleak scenario, there are signs of optimism. In 1994, In- donesia entered its second 25-year development cycle with a proclaimed commitment to the sustainable development of coastal resources (Sloan and Sugandhy 1994). Recently, there appears to be progress in the reor- ganization of those national agencies involved in coastal issues, and this will hopefully facilitate planning, implementation, and enforcement of policies designed to promote sustainable practices. In addition, nongov- ernmental organizations (NGOs) are playing an increasingly important role in many aspects of marine conservation, including public awareness and education. The desire for tourist dollars has made scuba divers a potentially strong lobbying group for the preservation of coral reefs, and other members of the private sector are showing interest in the conser- vation of marine resources in Indonesia. Finally, through the dissemina- tion of information to a global audience, international pressures may be brought to bear on the Indonesian government to adopt rational, sustain- able, and enforceable policies that will protect and preserve Indonesia’s valuable marine resources and the livelihood of her peoples.

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Dr. Shaun M. Moss, Associate Professor of Biology Hawaii Pacific University 45-045 Kamehameha Highway, Kaneohe, HI 96744 U.S.A.

Mr. Mark van der Wal, Biologist AIDEnvironment Donker Curtiusstraat 7-523, 1051 JL Amsterdam, the Netherlands

Contact Person: Dr. Shaun M. Moss The Oceanic Institute 41-202 Kalanianaole Highway Waimanalo, Hawaii 96795 U.S.A. Phone: (808) 259-3110 FAX: (808) 259-5971