Maldives Sea Cucumber Management Plan 2020

AUGUST 2020 DRAFT

Ministry of Fisheries, Marine Resources & Agriculture Malé, Maldives Table of Contents

Table of Figures ...... 3

List of Tables ...... 3

Abbreviations ...... 4

Part 1: Preamble ...... 5 1.1 Introduction and Title ...... 5 1.2 Scope and Application ...... 5 1.3 Guiding Principles ...... 6 1.4 Interpretation ...... 6 1.5 Entry into Force ...... 7

Part 2: Biology, Habitat and Behaviour ...... 8 2.1 Biology ...... 8 2.2 Habitat and Behavioural Traits ...... 8 2.3 Ecological Significance ...... 9

Part 3: Overview of the Sea Cucumber Fishery ...... 10 3.1 Recorded species ...... 10 3.2 Fishery ...... 11 3.3 Processing & Export ...... 12

Part 4: Purpose, Objectives and Strategies of the Plan ...... 13 4.1 Overall purpose ...... 13 4.2 Objectives and Strategies ...... 13

Part 5: Management measures ...... 21 5.1 Establishment of an Advisory Committee ...... 21 5.2 Licensing ...... 22 5.3 Harvesting and Processing Restrictions ...... 27 5.4 Involvement of foreign nationals in sea cucumber fishery operations ...... 27 5.5 Export requirements ...... 28 5.6 Precautionary measures ...... 29 5.7 Offences and Penalties ...... 30

Part 6: Implementation of the Plan ...... 32

Part 7: Reviewing the Management Plan ...... 32

References ...... 33

Annex ...... 35 Annex 1: Glossary ...... 35 Annex 2: Photo identification of commonly exploited sea cucumbers in the Maldives ...... 38

Table of Figures

Figure 1: Life cycle of a sea cucumber ...... 8 Figure 2: Export Data of Sea Cucumber from 1985 to 2018 (Source: Maldives Customs Services) ...... 12

List of Tables

Table 1 List of Sea Cucumber Species Recorded in the Maldives...... 10 Table 2: Breakdown of each objective by strategies, actions, timeframe and responsible parties ...... 14 Table 3: Details of licence categories, their respective fees and period of validity ...... 27 Table 4: List of offences and their respective penalties ...... 30

Abbreviations

CG Coast Guard

EPA Environment Protection Agency

FIS Fisheries Information System

IGO Intergovernmental Organisation

LGA Local Government Authority

MCS Monitoring, Control and Surveillance

MCS* Maldives Customs Service

ME Ministry of Environment

MFDA Maldives Food and Drug Authority

MIRA Maldives Inland Revenue Authority

MMRI Maldives Marine Research Institute

MNDF Maldives National Defence Force

MoE Ministry of Education

MoED Ministry of Economic Development

MoFMRA Ministry of Fisheries, Marine Resources and Agriculture

MoT Ministry of Tourism

MPS Maldives Police Services

NBS National Bureau of Statistics

NGO Non-Governmental Organisation

RFBs Regional Fishery Bodies

RFMOs Regional Fisheries Management Organisations

SDFC SME Development Finance Corporation

SWIOFC Southwest Indian Ocean Fisheries Commission

TAE Total Allowable Exports

Maldives Sea Cucumber Management Plan 2020

Part 1: Preamble

1.1 Introduction and Title

1.1.1 This Management Plan shall be cited as “Maldives Sea Cucumber Management Plan” (hereinafter referred to as the Plan).

1.1.2 The Plan is made pursuant to Article 18 of the Act No. 14/2019 (Fisheries Act of the Maldives) and constitutes a regulation made under this Act.

1.1.3 The Plan provides for the management of the fishery stated in Section 17 (a) (12) of the Act No. 14/2019 (Fisheries Act of the Maldives).

1.1.4 The Plan is the primary guiding document that provides direction on the management of sea cucumber fishery in the Maldives.

1.2 Scope and Application

1.2.1 Species and Activities

(a) The Plan shall apply to all species belonging to the Class Holothuroidea, commonly known as sea cucumbers.

(b) The Plan shall apply to all activities carried out in the Maldives that may impact sea cucumber resources, including but not limited to collecting, processing, storage, trading, and exporting of sea cucumber products from the Maldives.

1.2.2 Parties

(a) The Plan applies to all parties engaging in all activities targeting species listed in 1.2.1 (a).

(b) The Plan also applies to all parties, vessels, processing, and export facilities or places engaged in or otherwise connected with any activity within the scope of this Plan.

1.2.3 Exemption

The management measures in this Plan shall not apply to persons or parties who are undertaking an activity within the scope of this Plan for research purposes with a valid research permit issued by the Ministry under Research Regulation 2020.

1.3 Guiding Principles

1.1.1 Precautionary Approach: Timely and cost-effective measures shall be taken to safeguard ecosystems and prevent irreparable damage to them despite the lack of full scientific certainty.

1.1.2 Ecosystem-based management: The various and variety of interactions within an ecosystem, including anthropogenic elements, shall be recognised as opposed to accounting for matters, species, or ecosystem services in isolation.

1.1.3 Sustainable Development: In developing the fishery, the needs of the present shall be met without compromising the ability of the future generations to benefit from the resource.

1.1.4 Equity: Resources shall be acknowledged as shared and common goods and benefits obtained from the utilisation of resources shall be shared in a fair and just manner among all through the application of transparency, legitimacy, accountability and decentralisation.

1.1.5 Participatory Approach: All stakeholders, particularly those who are directly affected by a policy or a measure, shall be engaged in the decision-making process to ensure inclusivity and consensus-oriented outcomes.

1.4 Interpretation

1.4.1 This plan shall be interpreted and applied in the context of and in a manner consistent with the Act No.14/2019 (Fisheries Act of the Maldives).

1.4.2 Unless stated otherwise, words or expressions used in this Plan have been given the meaning specified in Annex 1: Glossary.

1.5 Entry into Force

This Plan shall come into force six months following its publication on the Government Gazette.

Part 2: Biology, Habitat and Behaviour

2.1 Biology

Sea cucumbers are “elongated tubular or flattened soft-bodied marine benthic invertebrates” (Anderson et al. 2011) belonging to class Holothuroidea. There are around 1400 known species of sea cucumbers distributed around the world (Pawson 2007). Life-history information for most sea cucumber species is unknown (Lovatelli et al. 2004) with limited existing studies finding a high degree of variability amongst individual traits. Some grow and reach reproductive maturity within one or two years, while others have been found to take up to 6 years (Sloan 1984). Known lifespans range from 5-15 years (Purcell 2010). Most sea cucumbers are gonochoric and breed sexually via broadcast spawning, although some undergo asexual reproduction. During spawning, motile sperm and oocytes (unfertilized eggs) are released directly into the water column, with fertilisation occurring in mid-water (Purcell 2010). Reproductive success is density- dependent and requires sea cucumbers to be in close proximity to each other to avoid asynchronous spawning (Mercier and Hamel 2009). A typical life cycle of a sea cucumber is shown in Figure 1.

Figure 1: Life cycle of a sea cucumber

2.2 Habitat and Behavioural Traits

Sea cucumbers are found in nearly all benthic marine habitats, ranging from the deep sea to intertidal mud flats and from boreal waters to the tropics (Purcell, Conand, Uthicke, & Byrne, 2016). The habitat requirements, movement patterns, population densities and broad spatial distribution of sea cucumbers are functions of various factors such as depth (Mercier et al. 2000), food availability (Navarro et al. 2013, 2014), temperature fluctuations, pH conditions as well as presence of predators (Birkeland 1989). The majority of sea cucumbers feed either by taking particulate material from the sea floor or by swallowing large amounts of the nutrient loaded substratum through which they burrow. However, several species of sea cucumbers have been found to feed upon particles in suspension as well (Fankboner 1978). Although sea cucumbers are

known to be often sedentary, they have been found to move in direct response to different environmental conditions (Young and Chia 1982). For example, the distribution of suspension-feeding sea cucumbers has been linked to water motion and its likelihood of bringing food particles within reach of their tentacles (Fankboner 1978), and deposit-feeding species have been found to congregate in areas rich in organic food sources (Navarro et al. 2013). The influence of light intensity and temperature fluctuations on the daily activities of some species has also been observed, whereby smaller juveniles were found to be buried around sunrise and emerged close to sunset, while larger juveniles buried when temperatures fell and emerged during mid-day (Mercier et al. 1999).

2.3 Ecological Significance

Sea cucumbers play fundamental roles in the ecosystem, contribute greatly to faunal community biomass, and play an important role in regulating physico-chemical processes of soft-bottom and reef ecosystems (Birkeland, 1989; Purcell et al. 2016). Deposit-feeding sea cucumbers feed on organic detritus mixed with sand and silt in the upper few millimetres of sediments and influence the stratification and stability of the sediment via ingestion and bioturbation (reworking, stirring or mixing of sediment layers), and suspension-feeding sea cucumbers modify water quality by altering its carbonate content and pH (Purcellet al. 2016). Sea cucumbers re-mineralise large quantities of organic nutrients as they digest bacteria, diatoms and detritus, and play a crucial role in nutrient cycling, which increases benthic productivity of coral reefs (Uthicke et al. 2004). They are also known to host many ectocommensal species such as copepods, crabs, and shrimps as well as endocommensals like Protozoa (gregarines, coccidias); Platyhelminthes (Acoela, numerous Turbellaria, Rhabdocoela, and Trematoda); and various species of fishes (Purcell et al. 2016). Sea cucumbers also add value to food chain by transferring energy from microalgae and organic detritus to higher trophic consumers including several species of seastar, crustaceans, gastropods, and fishes (Purcell et al. 2016; Francour, 1997). The removal of sea cucumbers from the environment with no management considerations can have ecological consequences such as the disruption of overall productivity of coral reef ecosystems.

Part 3: Overview of the Sea Cucumber Fishery

3.1 Recorded species

Approximately 26 species of sea cucumbers have been recorded in the Maldives (Joseph 1992; Bers 2005; Muthiga 2008; Purcell et al. 2012; Ducarme 2015, 2016).

Table 1 List of Sea Cucumber Species Recorded in the Maldives.

Scientific Name Common Name Local Name Reference

Actinopyga caerulea Blue Sea Cucumber - Ducarme (2015) Actinopyga echinites Brownfish - Joseph (1992) Actinopyga lecanora Stonefish Fili mushi / Buffulhi Ducarme (2015) Actinopyga mauritiana Surf Redfish Raiy Mushi Joseph (1992) Actinopyga miliaris Blackfish Kalhu Mushi Joseph (1992) Summit Kiru / Bohadschia argus Leopardfish Andréfouët (2012) Lahjehi Kiru Bohadschia atra Tigerfish - Ducarme (2016) Brown-spotted Sandfish / Bohadschia marmorata Gaabulhaa Purcell et al. (2012) Chalkfish Bohadschia vitiensis Brown Sandfish - (Ducarme 2016) Holothuria atra Lollyfish Holhi Purcell et al. (2012) Holothuria cinerascens Ashy Sea Cucumber - Purcell et al. (2012) Holothuria edulis Pinkfish - (Ducarme 2016) Holothuria fuscogilva White Teatfish Kan’du batu Joseph (1992) Elephant / Holothuria fuscopunctata Elephant Trunkfish Joseph (1992) Van’dhukeyo Holothuria hilla Tiger-Tail Sea Cucumber - Muthiga (2008) Muthiga Holothuria leucospilota White Thread Fish - (2008)(Muthiga 2008) Holothuria nobilis Black Teatfish Falhu batu Joseph (1992) Holothuria sp. (type ‘Pentard’) Flower Teatfish - Purcell et al. (2012) Pearsonothuria graeffei Flowerfish - Purcell et al. (2012) Stichopus chloronotus Greenfish Kashi / Feeru Purcell et al. (2012) Stichopus herrmanni Curryfish Curry Purcell et al. (2012) Stichopus horrens Selenka's Sea Cucumber - Purcell et al. (2012) Synapta maculata Spotted Worm Sea Cucumber - Joseph (1992) Synaptula sp. - - Andréfouët (2012) Thelenota ananas Prickly Redfish Alanaasi Purcell et al. (2012) Thelenota anax Amberfish Kahchala Joseph (1992) Anecdotal, not Black tiger Kalhu kiru recorded in literature Anecdotal, not White tiger Hudhu kiru recorded in literature

3.2 Fishery

The sea cucumber (Huifi Lan’daa in Dhivehi) fishery in the Maldives is documented to have commenced in 1985 (Joseph 1992; Ahmed et al. 1997), although some fishers report that it started in the late 1970s. Initially, sea cucumbers were mainly harvested from the northern atolls, but by 1987, the fishery had expanded across the Maldives. Within a few years, the sea cucumber fishery was the most highly valued fishery outside the tuna fishing season (Joseph 1992). In the 1980s, catch was comprised mainly of high- values species, but by 1990, catch composition had changed and became dominated by the low-valued Holothuria atra (Lollyfish). The degree of dependence on this species reflects the poor state of the sea cucumber fishery, because fishermen previously did not harvest this species as long as higher-valued species were available (Ahmed et al. 1997).

When the fishery started, sea cucumbers were picked by hand during low tide from the intertidal region and from shallow lagoons in water <1m (Ahmed, Mohamed, and Saleem, 1997). As the resource became less abundant in these areas, snorkelling and the use of other aids helped to exploit the resources in deeper waters, up to 15-25 meters. A fishing hook fixed to a block of lead and attached to a fishing line was popular in many islands. In this method, the fishermen, remaining on the surface or descending just a few meters underwater, lowers the device to hook the sea cucumber. In other cases, a pointed metal spear mounted on a long wooden pole was reported to be effective up to a depth of about 3 meters. The fishermen of some islands fished for nocturnal species, such as Bohadschia marmorata, using torches (Joseph, 1992). In response to the dramatic declines in catch rates of high valued species, Thelenota ananas and Holothuria nobilis, fishermen started to use SCUBA diving gear in the collection of sea cucumber (Ahmed et al. 1997). Although this harvesting method was officially banned in 1993, the prohibition has not been effectively enforced, and SCUBA diving for sea cucumber collection still continues today.

According to a phone survey conducted in 2017 by the Ministry of Fisheries, Marine Resources and Agriculture, it is estimated that around 1,230 individuals are currently involved in the fishery. The fishery operation is not a systemised process and is generally carried out on a smaller scale by individual fishers or as clusters of fishers within islands or in the atoll. Some fishers are exclusively involved in the sea cucumber fishery while others participate on a part-time basis. The distribution channel from harvest to export and retail is complex and engages several intermediaries.

As the sea cucumber industry is principally export based, the total catch removal is likely comparable to the total export quantities. However, because no consistent formal records are kept by the parties involved in the sea cucumber trade, it is not possible to determine the total harvest of each species with any degree of accuracy.

3.3 Processing & Export

Processing of sea cucumber is usually done in the fishermen’s home islands or on other islands. Sometimes the cleaning of sea cucumber commences on the fishing boat itself while returning to base after a fishing trip. The initial cleaning is followed by cooking the sea cucumbers in water for 30 minutes and then burying them under sand for approximately 12-18 hours. The remaining innards are then cleaned out by performing an incision on the dorsal surface, after which it is cooked for a second time, for a period of 30 minutes. Currently utilised processing methods in the Maldives as described by parties involved in the fishery include salting after the first cook to speed up the drying process, after which the sea cucumbers are boiled for the second time to remove the salt, and allowed to sun dry before they are cooked for a third time for straightening the shape of the body. Bêche-de-mer produced in the islands are either taken to Malé or sold to a third-party reseller (middle-man), who then supplies exporters. Some of the major exporters have agents in the islands purchasing on their behalf. In 2019, a total of nineteen parties had exported sea cucumber products from the Maldives.

Export based data is officially maintained solely by the Maldives Customs Service (MCS), documenting quantities and values declared at the time of export. The data for sea cucumber export is reported in weight of dried product and is not classified on a species level. Export data from the Maldives Customs Service shows that exports peaked in 1990 at about 745 tonnes (for MVR 31.5 million) and then experienced an overall decline over time. However, the revenue from sea cucumber exports began to increase starting in 2000 and peaked in 2003 at MVR 43.1 million, although the total weight of exports that year was 67.7% lower compared to that of 1990. This indicates that by the early 2000s, the export composition had changed, and sea cucumber consignments were again dominated by commercially high valued species.

Figure 2: Export Data of Sea Cucumber from 1985 to 2018 (Source: Maldives Customs Services)

Part 4: Purpose, Objectives and Strategies of the Plan

4.1 Overall purpose

4.1.1 The overall purpose of the management plan is to: (a) Establish an effective management and monitoring structure for the sea cucumber fishery and ensure future generations benefit from resources, and

(b) Act as the primary basis for guiding the authorities as well as stakeholders in the sustainable development of the fishery and trade.

4.2 Objectives and Strategies

4.2.1 The plan comprises of five specific objectives;

(1) Ensure that the harvesting, processing and trading of sea cucumber is carried out in an environmentally sound manner most beneficial to Maldivians through the application of principles of sustainability, ecosystem-based management and the Precautionary Approach;

(2) Implement Monitoring, Control and Surveillance and strengthen data collection and data reporting mechanisms for the sea cucumber fishery and trade;

(3) Prioritise evidence-based policymaking through the collection of biological, ecological, and socio-economic data on the sea cucumber fishery and associated resources;

(4) Ensure equitable benefits to all Maldivians and improve their livelihoods through decentralised development of the sea cucumber fishery and trade;

(5) Increase education and awareness amongst stakeholders and the general public.

4.2.2 Strategies and actions developed to achieve these objectives are summarised in Table 2.

Table 2: Breakdown of each objective by strategies, actions, timeframe and responsible parties

Objective 1: Ensure that the harvesting, processing and trading of sea cucumber is carried out in an environmentally sound manner most beneficial to Maldivians through the application of principles of sustainability, ecosystem-based management and the Precautionary Approach

Strategy Action Time frame Responsible parties

o MMRI 1.1.1 Establish no-take zones for sea cucumbers to Long-term o MoFMRA allow stocks to recover from fishing pressures if (5 – 10 years) o Local councils the stock is subject to being overfished o LGA

1.1.2 If and when applicable, apply minimum harvest / export size limits on sea cucumbers at the species Medium-term o MMRI level to allow them to grow, reach maturity and (3 – 5 years) o MoFMRA 1.1 Adopt precautionary spawn for more than one season before being approach for the susceptible to capture management of the fishery in the absence of reliable 1.1.3 Establish a system of quotas (Total Allowable biological or fishery data Exports) for the fishery at the species level if the o MMRI Long-term populations are deemed likely to be fished to o MoFMRA (5 – 10 years) levels that would impede recovery in a reasonably short time period

o MoFMRA 1.1.4 Enforce the international transboundary o MMRI restrictions for species whose populations are Immediate o ME being subject to overfishing o MCS*

1.2.1 Implement and enforce the restriction on the use 1.2 Promote the use of o MMRI of any fishing method or gear prohibited by the Immediate environmentally friendly o MoFMRA Fisheries Act or any other regulations

gears and techniques in the sea cucumber fishery 1.2.2 Prohibit the use of SCUBA gear for the o MMRI harvesting of sea cucumbers and restrict the Immediate o MoFMRA collection of sea cucumbers to free diving only

1.3 Maintain a leading role in Regional Fishery Bodies (RFBs) and relevant 1.3.1 Actively participate in the scientific and Intergovernmental management processes of SWIOFC and other o MoFMRA Immediate Organisations (IGOs) in relevant regional and international bodies o MMRI management and conservation of sea cucumbers

1.4.1 Establish mechanism to incentivise sea cucumber aquaculture start-ups by giving priority to fishers Medium-term o MMRI who are involved in sea cucumber fisheries and (3 – 5 years) o MoFMRA women in the community

1.4 Promote aquaculture as a 1.4.2 Establish arrangements for fingerlings / brooding Long-term o MMRI means of reducing stocks to be easily accessible for aquaculture (5–10 years) o MoFMRA pressure on the wild stock project start-ups

1.4.3 Construct and operate multi-species hatcheries Medium-term o MMRI and demonstration farms to facilitate aquaculture operations (3 – 5 years) o MoFMRA

Objective 2: Implement Monitoring, Control and Surveillance and strengthen data collection and data reporting mechanisms for the sea cucumber fishery and trade

Strategy Action Time frame Responsible parties

2.1.1 Establish licensing arrangements for harvesters to effectively monitor sea cucumber catch rates and Short-term o MoFMRA effort and obtain other important fishery (1 – 3 years) o Local Councils dependent data

2.1 Establish an effectively 2.1.2 Establish licensing arrangements for sea cucumber controlled and monitored o MoFMRA processors to effectively monitor methods and Immediate trade flow o MFDA scale of processing

2.1.3 Establish registration arrangements in Fisheries o MoFMRA Information System (FIS), Keyolhu, to control and Immediate o MCS* monitor sea cucumber trade

2.2.1 Require harvesters to submit catch-log data to the Short-term o Local Councils Ministry (1 – 3 years) o MoFMRA

2.2 Establish an efficient 2.2.2 Require any facilities processing sea cucumbers documentation scheme for and trading to exporters to submit transaction log Immediate o MoFMRA the sea cucumber fishery records to the Ministry

2.2.3 Require exporters to maintain purchase records (including sources) by species and apply for a Immediate o MoFMRA catch certificate for each consignment they intend to export

2.2.4 Expand the catch documentation scheme to cover sea cucumber exports and require that an approved catch certificate is submitted along with Immediate o MCS* a packing list by species with weight for all consignments of sea cucumbers that are exported

2.3.1 Work with other government agencies (e.g. o MoFMRA Customs, MFDA, MIRA) and relevant NGO’s to Immediate o MFDA monitor exports o MIRA

2.3.2 Conduct trainings in species identification of wet o MoFMRA Medium term and processed products for Maldives Customs o MMRI (3 – 5 years) Service officials and other inspectors o MCS*

2.3 Establish an effective monitoring and 2.3.3 Conduct spot checks at harbours, processing o MoFMRA enforcement system to Medium term facilities and airport to ensure compliance to o MCS* ensure effective (3 – 5 years) compliance relevant requirements o MMRI

2.3.4 Educate fishers, traders, processors and exporters about new and existing regulations via o MoFMRA Immediate workshops, trainings, campaigns, or o MMRI dissemination of information materials

Objective 3: Prioritise evidence-based policymaking through the collection of biological, ecological, and socio-economic data on sea cucumber fishery and associated resources

Strategy Action Time frame Responsible parties

3.1.1 Implement nationwide biological studies, size Short-term sampling, and monitoring programmes for reef o MMRI (1 – 3 years) resources, including sea cucumbers

3.1.2 Gather geographical information on fishing grounds using fishery data and field surveys in Short-term o MoFMRA 3.1 Improve data collection on order to study the spatio-temporal exploitation (1 – 3 years) o MMRI biological, ecological, and patterns in sea cucumber fishery socio-economic aspects of sea cucumber fishery to support evidence-based policymaking 3.1.3 Conduct a series of biological or ecological assessments to inform on the status of Holothuria Immediate o MMRI nobilis and Holothuria fuscogilva

3.1.4 Conduct series of socio-economic surveys every o MoFMRA four years to identify and understand the scale of Immediate o Local councils sea cucumber fishery in the Maldives

Objective 4: Ensure equitable benefits to all Maldivians and improve their livelihoods through decentralised development of the sea cucumber fishery and trade

Strategy Action Time frame Responsible parties

4.1.1 Facilitate the establishment of sea cucumber o MMRI grow-out farms in island lagoons as a means of Medium-term o MoFMRA alternative livelihood for sea cucumber fishers (3 – 5 years) o Local councils and to provide productive gains for communities 4.1 Increase profitability for sea cucumber fishing communities 4.1.2 Expand the import duty exemption scheme to incorporate sea cucumber fishery, including the o MoFMRA improvement of value-added sea cucumber Immediate o MCS* products and items imported for sea cucumber harvesting vessel development

4.2.1 Support the diversification of value-added sea Long-term cucumber products to maximise economic returns o MoFMRA (5 – 10 years) 4.2 Foster new market to sea cucumber fishers and traders opportunities for sea cucumber fishery and o MoFMRA trade 4.2.2 Explore new local markets for sea cucumber Long-term o MoED products (5 – 10 years) o MoT o SDFC

4.3.1 Establish, maintain, and update a fishers’ registry, Masveringe Dhaftharu, to understand fishing o MoFMRA Immediate 4.3 Identify and engage community dependence on sea cucumber o Local councils stakeholders to ensure that resources policy decisions are made through a Participatory 4.3.2 Engage with stakeholders and take their views Approach and feedback into account in the implementation Immediate o MoFMRA of management measures

4.3.3 Work in close liaison with key sea cucumber o MoFMRA Immediate fishing communities and traders o Local councils

Objective 5: Increase education and awareness amongst stakeholders and the general public

Strategy Action Time frame Responsible parties

5.1.1 Based on data availability, compile and o MoFMRA disseminate information on: o MMRI • status of resource; o MoED Annual • fishery; o MIRA • trade and exports; and o MCS* • o NBS 5.1 Promote awareness and revenue to Maldives understanding of the sea cucumber fishery and its contribution to the Maldives economy

5.1.2 Develop education campaigns for school children and/or the general public on the important role Short-term o MoFMRA sea cucumbers play in marine ecosystems (1 – 3 years) o MoE

Part 5: Management measures

The sea cucumber fishery has been in operation for years in the Maldives without adequate monitoring and management. As a consequence, changes in species abundance, size structures and diversity, which are likely to have suffered declines, are unknown. Considering the fundamental roles that sea cucumbers play in supporting the overall productivity of the ecosystem and in the best interest of fishing communities and industry, it is critical that timely management measures and best practices are introduced through legislative instruments so that this important resource is sustainably managed to the benefit of stakeholders and future generations. To achieve this, the following are proposed.

5.1 Establishment of an Advisory Committee

5.1.1 An advisory committee shall be established to advise the Minister on policy matters relating to sea cucumber fishery conservation, management, sustainable development, research, and trade (herein referred to as the Committee).

5.1.2 The Committee shall be appointed by the Minister within three months of implementation of the plan, and will comprise of the following members:

(a) A Chairperson (head of the Fisheries Division) (b) A scientist from MMRI (c) 3 representatives of sea cucumber harvesters (d) 2 representatives of sea cucumber exporters (e) A representative from the Ministry of Environment (f) A representative from the Maldives Customs Service (g) A representative from the Maldives Police Service (h) A representative from the Ministry of Economic Development (i) A representative from Local Government Authority (j) A representative from a relevant locally registered NGO

5.1.3 The Ministry shall make a public announcement to call for Expression of Interest for the following Committee positions;

• Representatives of sea cucumber harvesters; • Representatives of sea cucumber exporters; • Representative from the NGO

5.1.4 The Fisheries Management Section of the Ministry shall execute the responsibilities of the Secretariat, including the maintenance of minutes and sharing of relevant documents with Committee members prior to meetings.

5.1.5 The Committee may invite specialists/advisors, representatives of the industry, or relevant government agencies, relevant regional or international organisations / institutions to specific meetings.

5.1.6 The Committee will meet on a biannual basis with special meetings to be called by the Chairperson when urgent matters arise.

5.1.7 The quorum for a meeting of the Committee shall be seven members.

5.1.8 The mandate of the Committee shall be:

(a) Monitoring the implementation of the Plan and providing advice to the Minister on a biannual basis; (b) Discussion of policy matters relating to the sea cucumber fishery; (c) Reviewing technical and other reports pertaining to the sea cucumber fishery; (d) Advising on management measures in response to the outcomes and recommendations from the technical reports and stakeholder workshops.

5.2 Licensing

5.2.1 The following parties operating within the sea cucumber fishery and trade must acquire a license:

(a) All commercial fishing vessels;

(b) All individuals, commercial parties and aquaculture facilities that perform any form of post-harvest operation of sea cucumbers (including but not limited to salting, cooking, drying)

5.2.2 The commencement of Section 5.2.1 (a) shall begin 12 (twelve) months from the date on which the Plan is published in the Government Gazette.

5.2.3 The Ministry shall maintain and update a sea cucumber fishers’ registry, Masveringe Dhaftharu.

5.2.4 The general process of application for and issuance of licences shall be in accordance with the procedures set forth in the Licensing Regulation 2020.

5.2.5 Prior to application for a Fishing Licence, the applicant shall ensure that the following requirements of the vessel are met:

(a) Vessel is registered at the Maldives Transport Authority; (b) Vessel has a seaworthiness certificate issued by the Maldives Transport Authority. (c) Vessel has a valid hygiene certificate issued by the Maldives Food and Drug Authority.

5.2.6 Terms and conditions of Fishing Licence are:

(a) Licence

• The licensee must keep the license (or a certified copy) on board the vessel at all times.

(b) Fishing area • All vessels shall operate strictly within the maritime zones of the Maldives as defined by Act no.: 6/96 (Maldives Maritime Zones Act).

• The captain must ensure that a logbook is kept onboard the vessel at all times and is produced at the request of a fisheries ranger or enforcement officer.

• The captain shall ensure accurate and timely catch log reporting to the Ministry as per the data reporting guideline published on the Ministry’s website.

• All information provided in this manner shall be true, complete, and accurate.

• Failure to submit the log or provision of inaccurate or falsified information is an offence.

(d) Cooperating with Enforcement Officers, Fisheries Rangers and Fisheries Observers

• The licensee should cooperate with all enforcement officer(s), fisheries ranger(s) and fisheries observer(s), as defined by the fisheries act of the Maldives and the general fisheries regulation 2020.

(e) Prohibited activities

The captain shall refrain from and ensure crew of the vessels refrain from, engaging in any if the activities listed below:

• Using SCUBA gear or any robotic equipment for the targeting of sea

cucumber species;

• Disposal of sea cucumber waste-water (post-cleaning stage) within 100 meters of reef edge;

• Fishing within designated protected areas under any other Laws or

regulations of the Maldives, as per harvesting restrictions;

• Targeting any species of fish protected under the Fisheries Act of the Maldives

or any other Laws, regulations and management plans;

• Retaining on-board, storing on-board, transhiping, transporting to a landing

facility or land any of the species protected by other laws or regulations in any

form.

• Conducting fishing or engaging in any related activities within 3 nautical

miles around FADs;

• Employing or involving a foreign national to harvest sea cucumbers for commercial purposes;

• Disposal of non-biodegradable waste or chemicals into the sea;

• Acting in contravention of any measures in this Plan or the Act no.: 14/2019 (Fisheries Act of the Maldives) or any of the regulations or management plans

pursuant to the Act or any pertinent laws or regulations.

5.2.7 Prior to application for a processing licence, the applicant shall ensure that the following requirements are met:

(a) Processors must be of Maldivian nationality or if the processing party is a company, it must be registered in the Maldives.

(b) The processing facility has a valid hygiene certificate issued by the Maldives Food and Drug Authority.

5.2.8 Terms and conditions of processing licence are:

(a) Purchasing

• All purchases made under this licence must be from a licensed sea cucumber harvesting vessel.

(b) Methods and conditions of processing

• The methods and conditions of processing should be in accordance with regulations and guidelines established by Maldives Food and Drug Authority (MFDA).

• Processing premises, equipment, packaging materials and tools may be subject to random inspections by the Ministry.

• All individuals and parties with this licence should submit a purchase report to

the Ministry on a monthly basis as per the data reporting guideline published

on Ministry’s website.

• Record logs must include, but be not limited to, the following information:

o Individual or vessel that harvested the sea cucumbers; o Purchase date; o Species and their respective size details (before and after processing); o If the processed products are prepared for export, the registration, and other details of the exporter

• All information provided in this manner shall be true, complete, and accurate.

• Failure to submit the log or provision of inaccurate or falsified information is an

offence.

• Licensees shall maintain the confidentiality of the data received from fishers as part of a requirement from the Ministry and not share such data with any other

party besides the Ministry.

(d) Cooperating with enforcement officers, fisheries rangers and fisheries observers

• The licensee should cooperate with all enforcement officer(s), fisheries ranger(s), and fisheries observer(s) as defined by the Fisheries Act of the Maldives and the General Fisheries Regulation 2020.

(e) Prohibited activities

• Disposal of sea cucumber waste-water (post-cleaning stage) within 100 meters of reef edge

• Carrying out a post-harvest operation on an island or premises without a written permission provided by the owner of the island / premises.

• Processing a species without a valid licence.

• Trading or retaining in a processing facility any species, part of species, or products made out of parts of species that are banned from extraction or trading is an offence.

• Acting in contravention of any measures in this Plan or the Act no.: 14/2019

(Fisheries Act of the Maldives) or any of the regulations or management plans

pursuant to the Act or any pertinent laws or regulations.

5.2.9 Licensing categories may vary based on the scale and nature of operations. The categories, details of the licence fees and the period of validity of the licences are summarised in Table 3.

Table 3: Details of licence categories, their respective fees and period of validity

Category Duration Fee (MVR)

Fishing Vessels 12 months 100

Processing (Salting only) 12 months 100

Processing (further processing, including salting, 12 months 300 cooking, drying or other type of processing)

5.2.10 The licences issued under this Plan shall not be transferable.

5.2.11 Licences should be renewed as per the licensing regulation 2020 and renewal will be subject to annual reviews and payment of the licence fee.

5.3 Harvesting and Processing Restrictions

5.3.1 The collection of sea cucumbers should not involve any methods of fishing that are prohibited by the Fisheries Act of the Maldives and any pursuant regulations. Harvesting of sea cucumbers should be restricted to hand-picking, sea-wading and free-diving only. All other methods of collecting sea cucumber, including the use of SCUBA diving gear or any robotic equipment, is prohibited.

5.3.2 At the post-cleaning stage, sea cucumber waste-water shall not be disposed of within 100 meters of the reef edge.

5.4 Involvement of foreign nationals in sea cucumber fishery operations

No foreign national shall be engaged in harvesting of sea cucumbers for commercial purposes.

5.5 Export requirements

5.5.1 Ownership of export operations

Sea cucumber exporters must be of Maldivian nationality or if the exporting party is a company, it must be registered in the Maldives.

5.5.2 Purchasing

(a) Exporters shall ensure that all processed purchases are made from a licensed party

(b) Exporters shall record via the Fisheries Information System, Keyolhu daily purchases pertaining to but not limited to the following information:

• Details of the licensed party from whom the fish was purchased; • Individual or vessel that harvested the fish; • Purchase date; • Species and their respective weight

5.5.3 Packing conditions

(a) Sea cucumber product for export shall be packed separately by species and the package clearly labelled with the species name, quantity (number of pieces & weight) of the product and the licence number of the exporter.

(b) Sea cucumber products for export shall be packed in accordance with the quality standards required by the Maldives Food and Drug Authority.

5.5.4 Catch certificate

(a) Each sea cucumber export consignment shall be accompanied by a catch certificate issued by the Ministry.

(b) Application for the catch certificate shall be submitted via the Fisheries Information System, Keyolhu.

5.5.5 Quarantining

In cases where quarantining is required by the country where live sea cucumbers are exported to, it shall be the responsibility of the exporter to make arrangements to quarantine the product at the Ministry’s facility with a fee payable to the Ministry.

5.5.6 Prohibited activities

(a) Unless permitted otherwise by the Ministry or any other government authority, exporting or attempting to export any species that have transboundary restrictions under the Convention on International Trade in Endangered Species of Wild Fauna and Flora (CITES) is an offence.

(b) Breaching the confidentiality of the data received from fishers as part of a requirement

from the Ministry and sharing such data with another party besides the Ministry.

(c) Acting in contravention of any measures in this Plan or the Fisheries Act or any of the regulations pursuant to the Act is an offence.

5.6 Precautionary measures

5.6.1 Where the Ministry finds evidence or has been advised that the populations of any sea cucumber species within the Maldives is under stress or at a critical risk of being overfished, the Ministry, in consultation with MMRI and the Committee, may take precautionary management measures not stated in this Plan to protect the wild stock.

5.6.2 These measures may include but are not limited to the following:

(a) Declaring the closure of a specific area within Maldives and prohibiting the extraction of sea cucumbers from the no-take zone;

(b) Prohibiting the capture, processing or export of a specific species of sea cucumber;

(d) Implementing a species catch / export quota;

(e) Impose other restrictions on activities that may affect sea cucumber stocks.

5.7 Offences and Penalties

5.7.1 Acting in contravention of any of the above management measures or conditions of a licence is an offence.

5.7.2 Penalties for non-compliance shall be applied as per Table 4.

5.7.3 If an offence is repeated for a third time, the licence of the offender shall be revoked and withheld for a period of 3 months.

5.7.4 Procedures for penalisation shall be in accordance with the Penalty regulation 2020.

Table 4: List of offences and their respective penalties

Offence Fine (MVR) Repeated offence

MVR 700 in addition to the Using SCUBA gear or any robotic equipment for 1000 previous fine (up to MVR the targeting of sea cucumber species 5000)

MVR 500 in addition to the Engaging in sea cucumber harvesting without a 3000 previous fine (up to MVR valid licence 10,000)

Harvesting, retaining on-board, storing on-board, MVR 700 in addition to the transhipping, transporting to a landing facility or 2000 previous fine (up to MVR landing any sea cucumber species or any other 5000) species that are protected

Conducting fishing or engaging in any related 5000 - activities within 3 nm around FADs

Foreign national engaging in harvesting of sea MVR 150 in addition to the cucumbers in a licensed vessel 750 previous fine (up to MVR 5000)

Employing or involving a foreign national to MVR 200 in addition to the harvest sea cucumbers in a licensed vessel 1000 previous fine (up to MVR 5000)

Failure to submit trip logs to the Ministry as MVR 200 in addition to the conditioned by the fishing licence 750 per trip previous fine (up to MVR 10,000)

MVR 500 in addition to the Engaging in processing (salting) without a valid 500 previous fine (up to MVR licence 10,000)

MVR 500 in addition to the Engaging in processing (any type of processing 3000 previous fine (up to MVR beyond salting) without a valid licence 10,000)

Carrying out a post-harvest operation on an MVR 500 in addition to the island or premise without a written permission 1000 previous fine (up to MVR provided by the owner of the island / premise 10,000)

MVR 500 in addition to the Disposal of sea cucumber waste-water (post- 2000 previous fine (up to MVR cleaning stage) within 100 meters of reef edge 400,000)

MVR 300 in addition to the Failure to submit reports / information to the 1000 previous fine (up to MVR Ministry as conditioned by the processing licence 10,000)

MVR 500 in addition to the Provision of inaccurate or falsified information to 3000 previous fine (up to MVR the Ministry 10,000)

MVR 200 in addition to the Sharing of data received from fishers with any 1000 previous fine (up to MVR other party besides the Ministry 5000)

Attempting to export a sea cucumber product 5000 - without a catch certificate

Exporting or attempting to export any species that have transboundary restrictions under the Blacklist the exporting party Convention on International Trade in Endangered 5000 and withhold the issuance of Species of Wild Fauna and Flora (CITES) without catch certificate for 3 months a valid permit

Part 6: Implementation of the Plan

6.1 The Ministry is responsible for the implementation and enforcement of this Plan as per Table 2.

6.2 The Ministry shall also work closely with other key stakeholders, in particular enforcement agencies, to monitor and ensure compliance and enforcement of all management measures.

6.3 The Maldives Marine Research Institute shall formulate a plan of action to guide all research activities that the institute is responsible for under this Plan.

Part 7: Reviewing the Management Plan

7.1 This Plan shall be reviewed and revised every three years by the Ministry.

7.2 The Ministry shall engage with sea cucumber fishing communities, licence holders, processors, exporters and other stakeholders in the review process.

7.3 Upon review, if and where applicable, management measures shall be revised, or new measures put in place based on scientific findings and other relevant data.

7.4 The Maldives Marine Research Institute shall advise the Ministry on biological and ecological aspects of the fishery to be incorporated in reviewing of the Plan.

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Annex

Annex 1: Glossary

(a) Aquaculture Culture, propagation, keeping, raising, and ranching of aquatic living resources on the Territory and in the maritime zones of the Maldives.

(b) Commercial fishing Fishing or Harvesting for the purpose of obtaining a financial benefit.

(c) Enforcement officer Any officer designated pursuant to Section 57 of this Act to enforce regulations made under this Act.

(d) Fisheries Ranger Persons who are appointed for and by the Ministry under Act No. 14/2019 (Fisheries Act of the Maldives).

(e) Fishing / Harvesting (1) searching for the purpose of catching, taking, killing and harvesting of fish;

(2) attempting to search for, catch, take, kill or harvest fish;

(3) engaging in any other activity that results in the searching, catching, taking, killing or harvesting of fish;

(4) placing or searching or retaking of any fish aggregating device or equipment including “radio beacons”;

(5) undertaking any operation at sea or on an island in preparation for any activity mentioned in subsections (1), (2), (3) or (4).

(f) Fishing vessels Any type of vessel, ship or any other thing which is used for fishing, which has been prepared for fishing, or which is usually used for fishing or related activities.

(g) Logbook Any instruments used to record data on fishing trips, including catch and effort data, submitted electronically or via any other medium determined by the Ministry.

(h) Management plans The plan with regard to fisheries planning, management and development in relation to Chapter Three of this Act.

(i) Master / Captain Person holding the most responsible position at any given time on-board a fishing vessel.

(j) Minister The minister responsible for fisheries, including aquaculture.

(k) Ministry The ministry responsible for fisheries, including aquaculture.

(l) Offence Administrative offences prescribed in this Act.

(m) Precautionary measures In the absence of complete information based on scientific research or where a matter has not been proved, measures adopted to manage the natural resources in a sustainable manner considering the possibility of an adverse outcome if such measures are not taken.

(n) Processing Activities undertaken to package, pack or bring any change to fish in order to preserve fish for a long period.

(o) Processing facilities Lands, buildings, or such other places on or in which:

(1) fish or aquaculture products are cleaned, packaged, dried, salted, chilled, frozen or otherwise processed for sale in and outside the Maldives; or

(2) fish or aquaculture products are stored for the purposes of packaging, canning, drying, cleaning, salting, chilling, freezing or otherwise for processing for sale in and outside the Maldives.

(p) Territory The territory of the Maldives as defined in Article 3 of the Constitution of the Republic of Maldives.

(q) Vessel Owner The person who fulfils the duties and obligations of, represents as having the rights of, or accepts the obligations of, whether in personal capacity or through another person, the owner; and person or persons associated with the owner, or the manager, director or secretary of a legal entity.

Annex 2: Photo identification of commonly exploited sea cucumbers in the Maldives

Scientific Name Common Name Local Name Photo

Actinopyga echinites Brownfish

Actinopyga lecanora Stonefish Fili mushi / Buffulhi

Actinopyga mauritiana Surf Redfish Raiy mushi

Actinopyga miliaris Blackfish Kalhu mushi

Summit kiru, Lahjehi kiru, Yellow Bohadschia argus Leopardfish Tiger

Bohadschia vitiensis Brown Sandfish Gaabulhaa

Holothuria atra Lollyfish Holhi

Holothuria fuscogilva White Teatfish Kan’du batu / Mas batu

Holothuria fuscopunctata Elephant Trunkfish Elephant / Van’dhukeyo

Holothuria nobilis Black Teatfish Falhu batu

Stichopus herrmanni Curryfish Curry

Stichopus chloronotus Greenfish Kashi / Feeru

Thelenota ananas Prickly Redfish Alanaasi

Thelenota anax Amberfish Kahchala

(Photos sourced from Purcell, Samyn and Conand, 2012; Coral Reef CPR, 2016)