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Boats to Burn: Bajo Fishing Activity in the Australian Fishing Zone

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Boats to Burn: Bajo Fishing Activity in the Australian Fishing Zone Asia-Pacific Environment Monograph 2 BOATS TO BURN: BAJO FISHING ACTIVITY IN THE AUSTRALIAN FISHING ZONE Asia-Pacific Environment Monograph 2 BOATS TO BURN: BAJO FISHING ACTIVITY IN THE AUSTRALIAN FISHING ZONE Natasha Stacey Published by ANU E Press The Australian National University Canberra ACT 0200, Australia Email: [email protected] This title is also available online at: http://epress.anu.edu.au/boats_citation.html National Library of Australia Cataloguing-in-Publication entry Stacey, Natasha. Boats to burn: Bajo fishing activity in the Australian fishing zone. Bibliography. ISBN 9781920942946 (pbk.) ISBN 9781920942953 (online) 1. Bajau (Southeast Asian people) - Fishing. 2. Territorial waters - Australia. 3. Fishery law and legislation - Australia. 4. Bajau (Southeast Asian people) - Social life and customs. I. Title. (Series: Asia-Pacific environment monograph; 2). 305.8992 All rights reserved. No part of this publication may be reproduced, stored in a retrieval system or transmitted in any form or by any means, electronic, mechanical, photocopying or otherwise, without the prior permission of the publisher. Cover design by Duncan Beard. Cover photographs: Natasha Stacey. This edition © 2007 ANU E Press Table of Contents Foreword xi Acknowledgments xv Abbreviations xix 1. Contested Rights of Access 1 2. Bajo Settlement History 7 3. The Maritime World of the Bajo 31 4. Bajo Voyages to the Timor Sea 57 5. Australian Maritime Expansion 83 6. Bajo Responses to Australian Policy 117 7. Sailing, Fishing and Trading in 1994 135 8. An Evaluation of Australian Policy 171 Appendix A. Sources on Indonesian Fishing in Australian Waters 195 Appendix B. Memorandum of Understanding Between the Government of Australia and the Government of the Republic of Indonesia Regarding the Operations of Indonesian Traditional Fishermen in Areas of the Australian Exclusive Fishing Zone and Continental Shelf (7 November 1974) 197 Appendix C. Agreed Minutes of Meeting Between Officials of Australia and Indonesia on Fisheries (29 April 1989) 199 References 205 Index 217 List of Tables Table 2.1: Population of the Tukang Besi Islands, 1994. 14 Table 2-2: Population and number of houses in Mola, 1994. 16 Table 3-1: Number of boats according to type in Mola Selatan and Mola Utara, 31 May to 5 June 1994. 43 Table 6-1: Example of 1994 prices for types of cuts of black shark fin in Pepela. 130 Table 7-1: Examples of Mola perahu crew composition, 1994. 137 Table 7-2: Number of Bajo perahu operating for each category of the Bajo fleet, August to December 1994. 144 Table 7-3: Number of boat trips made by 74 Bajo perahu, August to December 1994. 144 Table 7-4: Number of perahu sold or apprehended, and number remaining at the end of the season, December 1994. 147 Table 7-5: An example of grading and prices of black shark fin at Pepela, September 1994 (prices shown are in rupiah per kilogram). 159 Table 7-6: An example of grading and pricing for white shark fin from two traders in Pepela, 1994 (prices shown are in rupiah per kilogram). 159 Table 7-7: Amount received from sale of shark fin for 11 Bajo perahu, August to December 1994 (prices shown are in rupiah). 165 Table 8-1: Total number of Type 2 apprehensions and Bajo Type 2 apprehensions, 1975–97. 187 vii List of Maps Map 2-1: Area in which Sama-Bajau speakers are found in Southeast Asia. 8 Map 2-2: Settlements in the Tukang Besi Islands, Southeast Sulawesi Province. 13 Map 2-3: The island of Roti, East Nusa Tenggara Province. 26 Map 4-1: Key locations in northern Australia. 58 Map 5-1: Location of permitted areas of access for Indonesian fishermen in the Australian Fishing Zone under the 1974 Memorandum of Understanding. 90 Map 5-2: Ashmore Reef National Nature Reserve. 96 Map 5-3: Areas of prohibited access at Ashmore Reef National Nature Reserve. 99 Map 6-1: Bajo shark fishing grounds. 119 Map 8-1: International maritime boundaries in the Timor and Arafura seas. 190 List of Figures Figure 3-1: Types of Indonesian perahu hull forms and rigs. 47 Figure 3-2: Stem, keel and stern post layout and order of joining. 52 Figure 5-1: AFMA Classification of Indonesianperahu types found operating in Australian waters. 101 Figure 6-1: Types of cuts of black shark fin. 130 Figure 6-2: Diagram of a set longline and its components. 132 Figure 7-1: Sixteen-point Bajo wind compass. 150 Figure 7-2: Location and names of shark fins. 157 Figure 8-1: Total number of boat apprehensions and total number of Type 2 boat apprehensions, 1975–97. 186 viii List of Plates Plate 2-1: The villages of Mola Utara and Mola Selatan, Wanci Island. 18 Plate 2-2: The mosque and houses along the main canal in Mola Selatan. 18 Plate 2-3: Houses lining a narrow canal in central Mola Utara. 19 Plate 2-4: Recently built houses on the northern end of Mola Utara. 19 Plate 2-5: Low tide in Mantigola. 22 Plate 2-6: The Bajo settlement at Tanjung Pasir. 29 Plate 3-1: Healer restoring the sumangaq of a sick person. 36 Plate 3-2: A perahu lambo. 39 Plate 3-3: A perahu layar motor. 40 Plate 3-4: Gathering for prayers before drilling the navel for a perahu motor. 53 Plate 3-5: Preparing to launch the boat into the water. 54 Plate 5-1: The recreation building and accommodation block at Willie Creek. 102 Plate 5-2: Navy officers inspecting the catch of the Wisma Jaya, 1990. 109 Plate 5-3: Bajo crew confined to theirperahu lambo in Darwin Harbour. 112 Plate 5-4: Confiscatedperahu lambo driven into the embankment in Darwin. 112 Plate 5-5: Boats dragged out of the water onto the land. 113 Plate 5-6: Boats destroyed by burning. 113 Plate 6-1: A Mola Bajo fisherman photographed in August 1974. 123 Plate 6-2: First Bajo house built on Tanjung Pasir, November 1992. 128 Plate 7-1: Prayers performed before moving a perahu lambo from the village. 139 Plate 7-2: Moving the boat through the canal into the harbour. 139 Plate 7-3: A prayer at the rudder stock and tiller of the Tunas Muda. 143 Plate 7-4: Bajo perahu lambo anchored off Tanjung Pasir, October 1994. 145 Plate 7-5: Setting sail from Pepela. 146 Plate 7-6: Bajo sailing to Mola in early December 1994. 147 Plate 7-7: Squally west monsoon conditions on the return voyage to Mola. 148 Plate 7-8: A set of black shark fins. 158 Plate 7-9: A set of white shark fins. 158 ix Foreword This book, Natasha Stacey's Boats to Burn, is a study of considerable importance for an understanding of maritime relations in the Arafura and Timor Seas. The Arafura and Timor Seas link Australia and Indonesia. These seas provide more than just a source of shared resources; they also offer a common history of maritime involvement. This book explores this critical, but little known maritime history and considers its implication for the present. Boats to Burn focuses on the role of a distinctive population, the Bajo or Bajau Laut, who are remarkable for their sailing and fishing traditions. Known as the `sea nomads' of the region, the Bajo have established themselves throughout eastern Indonesia searching out marine resources Ð trepang (or sea-cucumber), shark fin, turtle and trochus shells Ð and feeding these products back into a trade network linking island Southeast Asia to the Asian continent. Bajo migration has been integral to the maritime development of eastern Indonesia. In the seventeenth century, the Bajo were primarily established on many of the small islands of the Sulawesi region; by the 18th century, they had sailed southward and had reached Roti, the southernmost island of the Indonesian archipelago. Records of the Dutch East India Company from May 1728 report a Bajo fleet of some 40 small family boats searching for trepang first along the southern coast of Roti and then in the Bay of Kupang. The Bajo thus sailed as the advanced scouts for other Macassans, particularly the Bugis, searching out new areas for gathering trepang. 1 By 1750, Dutch Company officers began issuing formal letters of permission to Macassan boats to allow them to gather trepang without hindrance. These letters covered not just the Timor coast but also the coasts of northern Australia, which was then referred to as New Holland. Describing the situation in northern Australia in the first years of the nineteenth century, Matthew Flinders sketches the beginning of this trepang-gathering industry: The natives of Macassar have long been accustomed to fish for trepang ¼ upon a dry shoal lying to the south of Rotee but about twenty years before, one of their prows was driven by the northwest monsoon to the coast of New Holland, and finding trepang to be abundant, they afterwards returned; and have continued to fish there since that time. 2 (1814, II: 257). 1 See Fox, James J., `Notes on the southern voyages and settlements of the Sama-Bajau' in Bijdragen tot de Taal-, Land- en Volkenkunde 133:459-65. 1977. 2 Matthew Flinders, A Voyage to Terra Australis ... in the years 1801, 1802 and 1803. 2 vols. London. 1814. xi Boats to Burn If we accept Flinders© account and recognise the ªdry shoal lying to the south of Roteeº as Ashmore Reef, then it follows that the Bajo arrival on the northern coast of Australia was roughly contemporaneous with the arrival of Captain Cook in Botany Bay. What is remarkable, however, is not these early dates, but the fact that Bajo sailing patterns at least to the seas in and around Ashmore Reef continue to this day.
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