Secretariat of the Pacific Community

1st SPC Heads of Meeting (Noumea, New Caledonia, 9—13 August 1999)

Information Paper 18 Original: English

Poison and Profits - in the Indo-Pacific

By

Charles Victor Barber and Vaughan R. Pratt

295/99 Eri^RonmEm October 1998 Volume 40, Number 8

Poisonanift^i

Cyanide Fishing in the Indo-Pacific

by Charles Victor Barber and Vaughan R. Pratt board the Morning Sun in the grey Hong Kong dawn just before Christmas 1997, a stocky Chinese stevedore stood waist- A deep in a tank with dozens of furiously thrashing napoleon , one of the most spectac­ ular of Asia's reef fishes. One by one, he wres­ tled the fish, some weighing nearly 30 kg, into a scoop net and into the hands of his co-workers on the dock above. Weighed and sold right on the dock for as much as $90 per kilogram, the fish were hustled off in minutes into waiting trucks equipped with their own holding tanks. By evening, some of them would be sold to elite Hong Kong diners willing to pay up to $180 per kilogram—and up to $225 per plate for the wrasse's lips, the most prized of reef fish delicacies. By the time the Morning Sun had unloaded, some 20 tons of live reef fish—8 tons of napoleon wrasse and 12 tons of assorted species— were on their way to the dis­ tricts where diners pick their fish from tanks at specialized shops for cooking in adjacent restaurants. The Morning Sun's catch, which came from In­ donesian waters, was just a drop in the bucket, however: Some 20,000 tons of live reef food fish were imported into Hong Kong in 1997.' The scene that December morning was just one link in a chain of poison and profits that is bringing destruction to some of the planet's most pristine and biologically diverse coral reefs: The fish on the Morning Sun were almost cer­ tainly captured by applying hundreds of kilograms of cyanide, the most lethal broad-spectrum poison known to science, across vast areas of Indonesia's coral reefs.2 In other cultures, live reef fish are prized more for their ornamental than their culinary value, and the international bade in aquarium fish—85 percent of which are captured in the Indo-Pacific—is driven by demand in Europe and North America. The impact is the same, however, because cyanide is as Eritrea, the Marshall Islands, the range of cyanide fishing in the Indo- also the preferred method for captur­ Solomon Islands, and Vietnam have Pacific region.) ing such fish. Whether it is about to be voiced suspicions that their fast-grow­ Cyanide fishing itself is fairly sim­ steamed with ginger sauce in a Hong ing live fish export industries are also ple: Fishermen first crush cyanide pel­ Kong restaurant or it is swimming in a using cyanide. (See Figure 1 on this lets into makeshift squirt bottles filled tank at a dentist's office in California, page for an indication of the probable with seawater. Then they dive down to any live reef fish from the Indo-Pacif­ ic region was very likely captured with some form of cyanide. Since the 1960s, more than a mil­ lion kilograms of cyanide have been squirted onto coral reefs in the Philip­ pines to stun and capture ornamental aquarium fish destined for the pet shops and aquariums of Europe and North America. More recently, the growing demand for live reef fish as food in Hong Kong and other major Asian cities has vastly increased the incidence of the practice. Strong de­ mand has spread cyanide fishing throughout Indonesia and into such neighboring countries as Papua New Guinea and Malaysia. And in the past vear, officials in countries as far-flunc The napoleon wrasse is a prime target for cyanide fishermen.

Figure 1. Cyanide fishing in the Indo-Pacific

Areai with suspected cyanide fishing Arras with confirmed cyanide fishing

SOURCE: Charles Victor Barber and Vaughan R. Pratt

6 ENVIRONMENT October 1998 CYANIDE FISHING IN MILNE BAY, PAPUA NEW GUINEA With some 12,000 square kilometers of the interests of the fishermen in negotia­ operation's warehouse.) A local dive oper­ coral reefs (an area nearly the size of Con­ tions with both the government and CWI. ator also related that he had come upon a necticut), Papua New Guinea is an impor­ It has not worked out that way, however. whole seaborne operation (small boats and tant center of Earth's marine biodiversity. In reality, CWI trained a core group of a mother ship, all sporting CWI's blue and In the past few years, these rich reefs have 40 fishermen to use cyanide to catch fish, red colors) that scattered upon his arrival, attracted the attention of Hong Kong's ignored its responsibility to spread the leaving a long trail of 200 to 400 smaller live fish traders, who have systematically economic benefits to the whole area, and reef fish floating dead in the water. Fol­ introduced cyanide fishing for the capture specifically targeted napoleon wrasse—a lowing some of the boats, he witnessed of napoleon wrasse and grouper species. species that is extremely difficult to catch them using squirt bottles on the reefs. In May 1998, a survey by investigators with a hook and line.2 The divers were It is suspected that at least some local from the International Marinelife Alliance forced to remain on CWI's ship for peri­ authorities have colluded with CWI. For and Conservation International of Milne ods of at least 30 days and to work 12- example, one local fisheries official who Bay Province, home to some of the coun­ hour days for minimal rations and very was in charge of inspecting all of CWI's try's most important reef areas, revealed low pay. For its part, DYMS not only shipments was visibly nervous and reluc­ the lengths to which some Hong Kong failed to protect the fishermen's interests tant to talk to the investigators, who were operators have gone to expand the scope but was profiting handsomely from the later told by locals that he had mysteri­ of cyanide fishing.1 deal, according to the fishermen and other ously come into some money in Septem­ Since 1991, the government of Papua local observers. ber 1997 (when CWI sent its first ship­ New Guinea has been assisting the Since September 1997, CWI has made ment of fish) and had been throwing provincial youth councils in developing three shipments of live fish to Hong Kong, lavish parties at his home. business ventures in the fisheries sector to officially totaling some 21 tons. Catch CWI and DYMS's trial permit was provide young people with jobs and records submitted to the government have recently canceled due to local dissatisfac­ income. A private consultant was hired to apparently been fabricated, however. For tion with the operation. Local communi­ help identify potential overseas investors instance, the record for one shipment ties are now expressing an interest in in the scheme, and as a result a Hong shows only one ton of napoleon wrasse, working with the International Marinelife Kong firm called Charter Wide Invest­ while the fishermen themselves say the Alliance and Conservation International ments (CWI) was invited to develop live shipment contained six tons of that highly to shift the focus from cyanide fishing to a reef operations. After failing to valued species. Because the fishermen sustainable . But in view of establish operations in several other were free-diving rather than using com­ Papua New Guinea's vast coral reefs, this provinces (due in part to suspicions by pressed air, they were forced to use abnor­ episode is undoubtedly just the first skir­ local officials that CWI was using cyanide mally large amounts of cyanide, about mish in a long and difficult campaign. and other destructive methods), in 1995 140 grams per dive.3 Many of the fisher­ CWI chose Milne Bay as its base of oper­ men fell ill right on the ship with symp­ ations and established a partnership with toms similar to those of cyanide poisoning 1. F. Cruz and B. McCulIough. 'The Live Reef Fish D'Entrecasteaux Youth Marine Supplies (though the company blamed the high rate Trade in Milne Bay Province, Papua New Guinea: Field Assessment Report" (unpublished report by the (DYMS), a company incorporated by the of illness on malaria). International Marinelife Alliance, 1998). local youth council. Together, they The use of cyanide was confirmed by 2. Napoleon wrasse can only be caught with a hook obtained a trial permit to conduct a live the divers themselves as well as by the and line if a special technique and the appropriate bait reef fishery venture and began operations investigators' own observations, even are employed. Usually, two fishermen lie crosswise in in April 1997. a small boat looking into the water through goggles though the operation managers tried to while the bait is lowered to the proper depth. When The project was supposed to provide conceal it. (One manager brought out the questioned by IMA field personnel, most fishermen employment and training for young work­ hook-and-line gear he claimed they were were found to be ignorant of the particular bait need­ ers in the area, with CWI furnishing the using, but this amounted to a total of 4 or ed to catch this highly valued species. necessary supplies, offering instruction in 5 hooks too small for and two 3. Divers using compressed air can take the time to hook-and-line live capture techniques, chase fish into crevices and selectively apply cyanide crude decompression needles. Meanwhile, to them. Free-diving divers with limited time under and marketing the catch in Hong Kong. the investigators came upon a sack of water are more likely to spread vast clouds of the poi­ DYMS's role was to represent and protect cyanide squirt bottles in the back of the son as fast as possible.

coral formations and squirt the cyanide importers involved in the trade. Mili­ This type of fishing exacts a heavy solution into the crevices where fish tary, police, and other officials are also toll, however, both from those engaged hide.3 The cyanide stuns the fish, mak­ paid well for looking the other way. in it and from the environment. For ing them easier to capture. In some The divers, by contrast, are usually divers, the most immediate health cases, however, the fishermen have to exploited by those who organize and threat is not from cyanide but from the use crowbars to pry coral heads apart supply the fishing operations. (For a fact that they spend long hours at con­ and retrieve the stunned fish. description of the ways in which ille­ siderable depths (often 15-25 meters) Cyanide fishing can be very a lucra­ gitimate business practices and official breathing through tubes attached to air tive business, at least for the vessel and corruption enter into cyanide fishing, compressors. As a result of the length holding-tank operators, exporters, and see the box above.) of time they spend submerged, divers

Volume 40 Number 8 ENVIRONMENT 7 :^: v **

:^- *? .*'^

"*•*;- *>,• ££&& ^J£ Squirting cyanide solution into a crevice in a . often suffer from decompression sick­ Dead fish, of course, do not metabo­ cyanide three months ness ("the bends") upon returning to lize the cyanide, which tends to accu­ apart can completely kill the surface. Nor is the air they breathe mulate in the internal organs, especial­ the exposed reef area.8 underwater necessarily healthy: The ly the liver.5 The risks of eating such Laboratory tests at the compressors that supply it are often fish have not been studied but may be University of Guam in refitted paint compressors on which significant (particularly in Asia where 1995 indicated that exposures as low the intake and exhaust valves are close people eat—and sometimes prefer— as 1 part in 10 million could kill together, which causes the divers to the internal organs). .9 Experiments at the Great Bar­ breathe in large amounts of carbon Cyanide fishing is also very destruc­ rier Reef in 1995 suggested "a delete­ monoxide. There have been no sys­ tive to the coral reef ecosystems in rious effect of cyanide fishing on tematic studies of the effects of such which it is practiced. Large percent­ corals in the immediate vicinity." The practices on divers' health, however.4 ages of the fish that are captured live researcher who conducted these exper­ The risks of eating fish caught with die in transit due to their poison-weak­ iments noted, however, that it is diffi­ cyanide are also unknown. It is likely, ened state, meaning that many more cult to estimate the level of exposure however, that fish sold live pose little fish have to be taken than arc actually to cyanide from fishing. The initial risk to human health because of the needed.6 In addition, cyanide kills exposure is likely to be high (i.e., parts relatively rapid rate at which (it is coral and reef invertebrates along with per thousand), but it probably declines thought) fish metabolize and excrete many nontarget fish.7 The extent to to low levels (parts per billion) within cyanide. Not all fish that are caught which exposure to cyanide injures or hours or even seconds, depending on with cyanide are exported alive, how­ kills the organisms that make up coral currents.10 ever: Those that die in the process are reefs themselves has not been studied In addition to these formal scientific often consumed locally. (Cyanide is extensively and thus is not really findings, there is a good deal of anec­ also sometimes added to the bait used known. A field test in the Philippines dotal evidence about the effects of to catch fish with a hook and line.) in 1980 showed that two exposures to cyanide fishing on corals. Deleterious

8 ENVIRONMENT October 1998 effects were first reported in the Philip­ the Indo-Pacific, which possesses beefed-up enforcement efforts; en­ pines during the 1980s. A more recent some 70 percent of the planet's coral hanced public awareness; testing of report from eastern Indonesia states reefs and is the global center of biodi­ live fish exports; training of cyanide that fishermen and divers "are adamant versity for corals, fish, mollusks, and fishermen in alternative techniques; that the live fish business is responsible reef invertebrates.13 Cyanide fishing and the development of sustainable, for empty reefs throughout the Philip­ also threatens the livelihood of poor community-based resource manage­ pines and Indonesia, and industry rep­ coastal people in the region, where ment and livelihood programs that resentatives give several examples of dependence on fish protein is very transform local fishermen into front­ line marine stewards.

The Live Reef Fish Trade The live reef fish trade in Southeast Asia has an estimated annual retail value of $1.2 billion (U.S. dollars), $1 billion of which consists of exports of food fish (mostly to Hong Kong) and $200 million of which consists of exports of aquarium fish to Europe and North America.16 Not all of these fish are caught with cyanide (Aus­ tralia's live reef fishery, for example. is cyanide-free), but a very large per­ centage are. To understand the dynam­ ics of this trade, it is necessary to be familiar with the various actors in­ volved and the incentives that motivate their behavior. First on the list are the cyanide fish­ ermen themselves. The number of such fishermen operating in the Indo- Pacific region is not known. However. based on estimates for the Philippines (where there are about 4.000). the total number probably does not exceed An illegally caught aquarium fish in the Philippines. 20.000. Thus, cyanide fishing is not a ubiquitous problem like slash-and- archipelagoes that are exhausted."11 high and fishing provides millions burn agriculture, which is practiced by Other observers report that cyanide with income.14 millions of poor farmers. Nor is pover­ fishermen in those two countries The Philippines, which is the birth­ ty the root cause of cyanide fishing. "invariably asserted that cyanide caus­ place of cyanide fishing,15 is also the although many of those who engage in es extensive damage to corals." In only country with a program to eradi­ it are quite poor. On the contrary. addition, divers and dive-tour operators cate the practice. Since the early cyanide fishermen are a fairly small say that cyanide fishing has caused the 1990s, the Bureau of Fisheries and and discrete group who are responding "total destruction" of reefs—including Aquatic Resources and the Philippine to very specific incentives: a new tech­ the corals, other invertebrates, and branch of the International Marineiife nology, a ready market for the product, fish.12 In short, there is strong evidence Alliance (IMA), a nongovernmental lax government enforcement of anti- that cyanide kills corals, but questions organization, have been developing cyanide laws, and the lack of viable remain about the necessary level of and implementing a broadly based alternatives for making a living. exposure, the effects of repeated expo­ Destructive Fishing Reform Program. Next on the list are the exporters. sure, and the relative susceptibility of Experience with this program during The number of companies engaged in different kinds of coral. the last five years shows that cyanide exporting live reef fish in the Indo- Deadly in any marine environment, fishing can be reduced through a com­ Pacific region is also unknown, but it cyanide fishing is particularly tragic in bination of the right policies and laws; (continued on page 2S)

Volume 40 Number 8 ENVIRONMENT 9 Poison and Profits (continued from page 9) appears to be expanding rapidly. In the early 1960s, for example, there were only three companies exporting aquarium fish from the Philippines and none exporting live food fish. By the 1990s, there were some 45 aquar­ ium fish exporters in the country and 8 companies exporting live food fish. At least 10 companies have holding tanks for live food fish in Bali, Indonesia, a major transhipment point.17 Conservative estimates of the annual volume of Asian trade in live food fish range from 20,000 to 25,000 metric tons (mostly from Indonesia), though the real total may be far greater.18 Philippine government sta­ tistics show that as many as 6 million aquarium fish were exported from that country in 1996, and Indonesia is catching up quickly.19 Closely related to the exporters are the businesses that import live food and aquarium fish. These businesses, in fact, are in essentially the same position as exporters: Without pres­ sure from the government to ensure that the fish they import were not caught with cyanide, they have little incentive to take action on the issue. As one large importer has argued, "We . . . importers do not participate in any catching of fish or its activities. We just finance the people by equipping them with boats and fishing gear. We just buy fish from them. The produc­ tion side is left to them."20 The last actors in the live reef fish trade are the consumers of these fish. Experience shows that consumers can play an important role in pressuring Sustainable fishing with nets in tlie Philippines. the aquarium-fish industry to reduce imports of fish caught with cyanide. Indeed, bad publicity and the ensuing consumers of live food fish, however. "yes," provided the right approach is consumer pressure in the United States As one Hong Kong observer has taken. Experience in the Philippines have recently led to efforts to certify remarked, "being endangered actually and, more recently, Indonesia suggests imported aquarium fish as having been seems to spur demand."22 that an effective anticyanide strategy 21 caught using sustainable methods. In the face of powerful economic must combine three elements. First, the Opposition to cyanide fishing is virtu­ pressures, is there any hope of curtail­ governments of the source countries ally nonexistent among the Chinese ing cyanide fishing? The answer is must reform their policies and strength-

28 ENVIRONMENT October 1998 en their institutions to effectively deal ium and live food fish moving through These provisions should apply not only with the problem. Second, the govern­ domestic and international airports as to those fish that test positive for ments of the importing countries must well as major international seaports, cyanide but also to the boats and hold­ take steps that reinforce the measures along with the activities of individual ing facilities used for cyanide fishing. taken by the source countries. Third, exporters and other relevant informa­ Nonetheless, the divers should be and most fundamentally, there must be tion. The data are actually collected by informed that the use of cyanide is ille­ strong partnerships with those on the IMA through its CDT and monitoring gal and that repeat offenders will be front lines, that is, the fishing commu­ network and then provided to all rele­ punished harshly. This will only be nities and fishermen in areas where vant national and provincial govern­ perceived as just, however, when local cyanide fishing is practiced. ment offices. fishermen see the big operators prose­ Establish a firmer legal framework cuted first. Targeting the latter also to detect and prosecute cyanide fishing reduces divers' incentive to take part in Policy Reform in Source and trade in cyanide-caught fish, ulti­ the trade. Countries mately requiring mandatory testing Ban or restrict the export of espe­ There are a number of measures that and certification of alt live reef fish cially vulnerable species, such as the the countries in which live reef fish are exports. While fishing with cyanide napoleon wrasse. Blanket bans on the caught can take to curb the use of and other poisons is illegal in virtually live reef fish trade are both unwise and cyanide: every country in Southeast Asia and unworkable and just drive the trade Establish cyanide detection test the Pacific, a much firmer legal frame­ underground. When the Philippines (CDT) laboratory facilities at all work is needed to make these laws attempted such a ban in parts of its major collection and shipment points. effective. Once a CDT laboratory and Palawan province several years ago, IMA and the Philippine Bureau of monitoring network are established, for instance, fishermen continued to Fisheries and Aquatic Resources have all exporters should be required to use cyanide but killed the fish after developed a simple test to determine submit to random sampling and test­ capture and sold them in the fresh fish the presence of cyanide in live-caught ing, inspection, and licensing by the market. In addition, these bans deprive fish.23 This test has been in use for government. Along the same lines, all coastal communities of one of their more than six years in the Philippines, shipments should require a certificate most lucrative sources of income. The with six laboratories currently testing that shows the origin, volume, and goal of live reef fisheries policy should 6,000 samples annually. Testing is cru­ species composition of the shipment be threefold: to ensure that reef fish and indicating that it has been subject cial to reducing cyanide fishing. With­ are caught without cyanide; to keep to random CDT procedures and is out it, authorities cannot determine the harvest at a sustainable level; and cyanide-free. whether fish have been caught with to provide a fair return to local fisher­ cyanide or obtain convincing evidence A mandatory certification system men. It should not be to place reef fish to prosecute violators. But to be suc­ (such as the one that will be estab­ completely off limits. cessful, CDT labs must be backed up lished in the Philippines by the end of Even so, the pressures on particular by a larger network of agencies and 1998, when draft regulations are final­ species may become so great that gov­ monitoring posts, as well as by staff ized) would provide both positive and ernments will have to ban their capture trained in sampling prospective live negative incentives for exporters. On altogether. This is currently the case fish shipments. the one hand, uncertified fish would with the napoleon wrasse, which takes Establish adequate data gathering become a liability. On the other hand, a long time to reach sexual maturity. and monitoring systems. In many certified fish could obtain higher can be relatively easy to catch, and has countries, fisheries data are highly prices—an "environmental premi­ the highest value of the live food fish aggregated, making it impossible to um"—in markets where governments species. Although a ban is unlikely to tell how many of a given species were regulate imports and consumers prefer stop the trade in this species altogeth­ brought to a particular collection fish caught without cyanide. er, it should reduce the total volume of point, the volume of exports in a given Of course, enforcement procedures such trade. month or year, or who was involved in and penalties must be fairly applied Regulate the importation, distribu­ the harvesting and exporting. There and should focus on punishing the larg­ tion, and use of cyanide. Cyanide has will be no way to regulate cyanide use er players in the trade (such as many legitimate uses in industry, but in the live-fish trade until such data are exporters and corrupt officials) rather in the Indo-Pacific region a consider­ regularly collected. than unduly persecuting the divers able amount of it is diverted to live- In the Philippines, the data system is themselves. To that end, governments fish collection. In most of the region's now structured so that the government might consider enacting strong forfei­ countries, the importation, distribu­ can monitor the total number of aquar­ ture provisions against large operators. tion, and use of cyanide is virtually

Volume 40 Number 8 ENVIRONMENT 29 unregulated. To remedy this prob­ lem, a Sodium Cyanide Act was intro­ duced in the Philippine House of Rep­ resentatives in late 1996 (it has yet to be passed, however).24 Although this type of law will undoubtedly be diffi­ cult to enforce, it should increase the price of cyanide on the black market, thus making alternative techniques more attractive economically to those fishermen who are currently using cyanide in their operations. Address corruption within govern­ ments. The ease with which govern­ ment officials can be bribed works against all of the other measures that source countries can put in place to stop cyanide fishing. But with so much money at stake, corruption is a recur­ rent problem. It can only be eliminat­ ed when officials at the highest levels of government take a firm public stand against it and when corrupt officials are dealt with harshly. The heads of vulnerable agencies like fisheries, the navy, and customs must establish a firm policy that anyone convicted of involvement in cyanide fishing will be summarily fired and permanently barred from civil service or military positions. In addition, prosecutors should make it known that they will seek the maximum penalties available under the law in prosecuting corrupt officials. The media can help by exposing instances of corruption. Finally, an effective CDT lab and monitoring network, backed up by community-based monitoring, can provide governments with a great deal of information about potential corrup­ tion problems. Mount public awareness campaigns in the media and schools. NGOs and government leaders should work sys­ A typical in the Philippines. tematically to build public awareness of the threat of cyanide fishing and the value of marine resources and biodi­ can help to ensure that it does not steps that must be taken to stop it. versity, the effects of cyanide fishing, become deeply rooted. Press releases, symbolic public events, and the tools available to stop it should and the steady provision of informa­ be integrated into the curriculum from Policy Reform in Importing tion to journalists are all tools that can the primary grades on. Cyanide fishing Countries raise public awareness and strengthen is a learned behavior that becomes a other anticyanide fishing measures. In tradition over time. By teaching alter­ As in any other type of international the schools, information about the natives from an early age, countries trade, the countries that supply, live

30 ENVIRONMENT October 1998 reef fish will need the cooperation of porters and governments to take action (which can take two to three weeks) governments in the importing coun­ will mount rapidly. involves in-water exercises to teach tries if their efforts to stem cyanide use Some live fish importers are already the fishermen how to use fine-mesh are to be effective. At present, no moving to ensure that the fish they buy barrier nets along with basic diving importing country requires proof that have not been caught with cyanide. safety. Once these fishermen have imported fish were not caught using For instance, Brightfuture Industries, a learned how to catch a core number of cyanide or penalizes firms that pur­ Hong Kong firm, has publicly com­ species, they are taught to use different chase such fish. Importing countries mitted itself to being cyanide-free and types of nets so that they will be able should take the following steps: has even trained fishermen to catch to catch a wide enough variety to com­ Monitor imports of live fish and pro­ groupers using hook-and-line tech­ pete effectively in the market. This vide data to exporting countries. niques. Brightfuture is now organizing also reduces the pressure on individual Importing countries should establish an association of live fish importers in species. In the case of live food fish, data collection systems that record— Hong Kong and is working to promote fishermen are taught hook-and-line by species—the number of live -fish anticyanide and other sustainability techniques for catching groupers and, imported and their country of origin. policies within the local industry (see most importantly, simple ways to These countries should then share that the box on page 32 for a description of decompress the fish's air bladders to data with the appropriate government one of its activit-es). ensure post-harvest survival and agencies in the exporting countries. In health.25 Because different species of this way, exporting countries will be Working with Fishing groupers favor different types of bait, able to verify their own statistics and Communities bait preparation is a key part of the investigate discrepancies arising from training. (Because these fishermen do unrecorded exports. Even with the best policies in place, not have to dive, lessons in diving Phase in a legal requirement that all there is just no substitute for working safety are not offered.) live reef fish imports be certified as directly with the fishermen and their After the formal training period cyanide-free. As soon as the source families. If they are left out of the ends, IMA trainers stay with the com­ countries require certification for all equation, it will simply not be possible munity for up to a month to monitor exports, importing countries should to solve the problem of cyanide fish­ the catch. Fish samples are also col­ reciprocate by requiring that all live- ing. Here again, there are a number of lected for testing at IMA labs to ensure fish imports be so certified. Because measures that can be taken. that cyanide use has in fact ended. Indonesia and other source countries The first is to train fishermen in Other activities, such as organizing do not currently have testing and certi­ alternative . When local fishing associations and coopera­ fication systems, it is unrealistic for fishermen are presented with effective, tives and devising means to add value importing countries to immediately cyanide-free methods of catching food to the catch take more time and in­ impose a ban on imports of uncertified and aquarium fish—and given greater volve periodic follow-up over months fish. But importing countries can awareness of the legal, health, and or even years. begin phasing in a prohibition on such ecological risks of cyanide fishing— The second measure that can be imports while working with the many choose to switch to those meth­ taken to curb cyanide fishing is to exporting countries to develop testing ods. In the Philippines, for instance, enhance the income fishermen receive and certification procedures, laws, and IMA has trained more than 2,000 from the live-fish trade and other technical capacity. Importing coun­ cyanide fishermen in more ecological­ sources. When fishermen get more tries will also need to work with ly benign techniques. A typical train­ money for cyanide-free fish, they are groups such as the U.S. Marine Aquar­ ing program involves 25 to 30 fisher­ extremely enthusiastic about switch­ ium Council, a new industry-NGO men and can last up to a month. The ing to cyanide-free techniques. Typi­ organization to provide independent content of the program varies depend­ cally, cyanide fishermen receive only a monitoring of the certification systems ing on whether the fishermen are small percentage of the value of their that governments set up. catching aquarium fish or live food catch, with the lion's share going to Increase consumers' awareness of fish. In both cases, however, the first middlemen. By helping fishermen to the impacts of cyanide fishing. As in part involves classroom instruction on acquire post-harvest equipment and other areas of environmental certifica­ the basics of reef ecology, alternative know-how and assisting them in tion, it is crucial to build consumer techniques for capturing live fish, developing their own marketing coop­ awareness. When consumers them­ management of the catch, and other eratives and outlets, governments and selves demand assurances that the fish core topics. NGOs can boost the fishermen's own share of the profits from fishing. they are buying have not been caught In the case of aquarium fish, the sec­ with cyanide, the pressures on ex­ ond part of the training program Few fishing communities, however,

Volume 40 Number 8 ENVIRONMENT 31 opportunity exists. The introduction ESTABLISHING A SUSTAINABLE LIVE REEF FISHERY of simple technologies can often add IN THE CENTRAL PACIFIC: THE CASE OF KIRIBATI significant value to the products that communities are already harvesting The island nation of Kiribati (pro­ establishing a cyanide-free live reef fish­ and selling. Examples include spicing ery and that it was paying local fishermen nounced "Kiribas") stretches 3,218 km fish and producing oyster sauce from along the equator in the central Pacific good prices for the catch compared with Ocean. With a land area of only 823 those paid in countries such as the Philip­ raw oysters. square kilometers and a population of pines and Indonesia. While surveys to Another important measure is pro­ only 80,000, the country's exclusive eco­ determine sustainable harvest levels still moting community-based manage­ need to be done, it appears that this oper­ nomic zone covers some 3.5 million ment of local fisheries and coral reefs. square kilometers of ocean, an area near­ ation is a sustainable one that provides ly nine times the size of California. Kiri­ local communities with a new high-value, Important as training and income bati's three island groups (the Gilbert, low-volume fishery. It is a hopeful sign enhancement are, partnerships with Line, and Phoenix Islands) contain 29 that Brightfuture, which is a major player fishing communities must go beyond coral atolls, and the country's vast reefs in an industry often viewed as central to these activities. The sustainable man­ the cyanide-fishing problem, has taken the are among the most pristine on the planet. agement of coastal areas requires com­ Its economy is based on copra, seaweed, initiative to promote cyanide-free and sus­ and fishing, with the licensing of foreign tainable fishing on this important Pacific plete cooperation between government tuna boats being an important source of reef frontier. agencies and the local people who income. The government, however, is the The investigation also discovered, earn their living from the sea—an country's largest employer. however, that several Chinese and In­ arrangement often called co-manage­ In 1997, Patrick Chan, director of a donesian fishermen have begun live-fish ment. Destructive activities such as Hong Kong-based live fish importing firm operations in the northern Gilbert Islands cyanide fishing, , coral and that local officials are very concerned called Brightfuture Industries, surveyed mining, and mangrove destruction can Kiribati's potential as a source of groupers about the reported use of "hookah" diving and napoleon wrasse. He discovered that compressors and "chemicals." Far to the only be curbed when the communities the species were plentiful and that the east, around Christmas Island in the Line on the front line become central play­ local people did not eat them—indeed, Island group (only three hours by air from ers in conservation efforts and benefit their only use at that time was as pig food. Honolulu), eight groups are reported to be directly from the sustainable manage­ Brightfuture is committed to sustainable, collecting aquarium fish for shipment to ment of coastal resources. This will cyanide-free fishing, and it has taught Hawaii. Some collectors and exporters in some local fishermen the hook-and-line the region have expressed the suspicion require policy shifts on the part of method of capturing fish live as well as the that chemicals—probably cyanide—are most governments, which have tradi­ proper techniques for storing them in being used by at least some of these col­ tionally treated coastal zones and fish­ floating cages to await pick-up. In late lectors. eries as subject to state power alone. 1997, Brightfuture's Fortune Star called The government has expressed interest in Kiribati and picked up some five tons of in establishing cyanide detection labs In some areas of eastern Indonesia live reef food fish. both in Tarawa (the capital, which is in and the western Pacific, customary Traditional, local village councils are the Gilberts) and on Christmas Island and systems of marine tenure and manage­ in establishing a more comprehensive an important part of Kiribati's gover­ ment provide a sound institutional nance system, and they exert consider­ policy on the live reef fish industry in able control over the use of reef re­ general. Over the next few years, the basis for community-based efforts. In sources. Both the local councils in the International Marinelife Alliance and the Palau, for example, a traditional tenure initial collection areas and government World Resources Institute will be work­ system has been effective in limiting fisheries authorities have warmly wel­ ing with the government, Brightfuture, and, in the view of one and local village councils to ensure that comed Brightfuture as a potentially valu­ researcher, is "probably the most valu­ able source of employment and income the considerable potential for a sustain­ for local communities. able live reef fish trade in Kiribati is not able measure 26 In May 1998, the Fortuna Star made a threatened by rogue operators bringing ever devised." Where such systems second trip and picked up some seven tons cyanide and other destructive practices to exist, governments should recognize of live fish, this time inviting an investiga­ these remote and outstanding reefs. and support them, providing technical tor from the International Marinelife and financial assistance to traditional Alliance to accompany the ship and docu­ 1. G. P. Reyes, "Kiribati: A Report on the Recent ment the operation.1 The investigation Visit to the Central Pacific Islands of Kiribati" communities so that they can more (unpublished report by the International Marinelife easily adapt to rapid economic and confirmed that Brightfuture was indeed Alliance, 1998). i ,' : technological changes. As it happens, most coastal commu­ subsist wholly from the live-fish engaging in agriculture, wage labor, nities in Southeast Asia no longer have trade. On the contrary, they usually and other gainful activities. An effec­ functioning customary systems for pursue a "portfolio" strategy that tive livelihood enhancement strategy managing and conserving coastal includes selling fresh and dried fish needs to target all of these activities resources. Rather, they are heteroge­ in addition to live fish, along with and introduce new ones where the neous mixes of immigrants and natives

32 ENVIRONMENT October 1998 CYANIDE FISHING AND REFORM IN SULAWESI, INDONESIA In 1996, concerned about rumors that without a local ally and clear support from fishermen to organize an association live fish operators from the Philippines the fishermen themselves. Discussions through which they have established were moving into Indonesia's North with a Manado dive operator who was links to buyers in Europe. No longer Sulawesi province, the International concerned about the destruction of the dependent on one middleman, they are Marinelife Alliance (IMA) conducted an province's reefs (which are world famous able to obtain better prices for their fish. investigation in the area.1 At the outset, in diving circles) led to a strategy, howev­ And with IMA guidance, they are now this investigation was a bit of a cloak- er. This person, it turned out, was a leader selling some 35 species whereas before and-dagger operation: Concealing the of Primkoveri, the provincial cooperative they only sold 5. Reduced mortality in fact that he was from IMA, the investiga­ of military veterans, and Primkoveri be­ the capture and post-harvest process, tor made a point of befriending the Fil­ came IMA's key local partner. lack of by-catch (nontarget fish killed by ipino boss and his employees in Manado, One of the areas in which IMA had the cyanide), and a wider variety of target who were glad to have a countryman investigated the live reef fishery (in this species (implying less pressure per with whom to pass the time over a few case, for aquarium fish) was a village species) indicate that a clearly unsustain­ beers one night. called Tumbak whose 257 families (near­ able fishery has been transformed into a The Filipinos, it turned out, were run­ ly 1,200 people) had become increasing­ far less destructive one. ning a widespread cyanide fishing opera­ ly involved in the cyanide-based fish New groups of fishermen from Tum­ tion stretching from Manado on Sulawe­ trade. In early 1997, for instance, the bak and adjacent villages were trained in si's northern tip all the way to Ujung buyer who held the local monopoly on early 1998, and similar programs are Pandang in the far south of the large the trade reported that he was shipping being established in other parts of the island. Working with a local business­ 6,000 to 8,000 aquarium fish from Tum­ province and the neighboring province of man, they were capturing volumes of bak every week.2 With some help from Central Sulawesi. Several international groupers and napoleon wrasse large Primkoveri, IMA began a dialogue with aid agencies have expressed interest in enough to justify chartering aircraft to the Tumbak fishermen to assess their supporting the program, and the Indone­ transport the catch to Manila for reship- interest in learning the barrier net method sian branch of IMA has been established ment to Hong Kong. Other operators in of collecting aquarium fish3 and in to coordinate that effort. the area were specializing in cyanide- receiving assistance in marketing their caught aquarium fish, shipping their catch. The initial response was favorable, catch through Bali and Jakarta. Most dis­ with a number of the fishermen express­ 1. For more details, see C. V. Barber and F. Cruz, "Turning the Poison Tide: The International turbingly, the Filipinos had been system­ ing the desire to learn alternatives to the Marinelife Alliance's Cyanide Fishing Reform Pilot atically introducing the cyanide fishing cyanide method. Program in Indonesia," Live Reef Fish Information technique to new areas of North Sulawe­ In July 1997, an IMA training team Bulletin Number 4 (Noumea, New Caledonia: Secre­ si province and to part of adjacent Cen­ that included two Indonesians recruited in tariat of the Pacific Community, 1998). 1. tral Sulawesi province. The Filipino Manado began a formal training program 2. R. B. Pollnac, C. Rotinsulu, and A. Soemodino- to. Rapid Assessment of Coastal Management Issues exporter who had shared beers and trade for 50 fishermen. The first few days were on the Coast of Minahasa, Draft technical report secrets with the investigator eventually difficult both because of the language (Coastal Resources Management Project-Indonesia, found out that IMA was on his trail and barrier and because the fishermen lacked 1997). 43-45. returned to the Philippines. But the dam­ the proper equipment. Soon, however, the 3. The barrier net method of capturing live aquari­ age had already been done: Indonesians fishermen realized that they could catch um fish involves setting up a transparent net around the perimeter of the target coral area. The collector have proven quite adept at cyanide fish­ as many or more fish—and have fewer of then scares the fish with sound or movement, so that ing—and fully capable of spreading the them die in the process—with a barrier they instinctively dart back in the direction of their technique without Filipino assistance. net, so they readily embraced the new coral refuge. The net, however, denies them access to IMA felt that it had to act but was technology. After three weeks of training the crevices in the coral and gives the collector enough time to harvest them with scoop nets and uncertain as to how. New to Indonesia, the and their first shipment, the fishermen specially designed buckets with fine-mesh zippered organization felt strongly that it could not were weaned away from cyanide. net tops. With this method, unwanted fish are work with the fishing communities there Since that time, IMA has helped the released and the reef is left virtually undamaged.

that lost such systems long ago. This where such systems were being imple­ best equipped to provide—these does not mean that viable community mented, and it noted that the actual groups can serve as an early warning management systems cannot be creat­ number was probably higher.27 network, letting officials know when ed, however. The Philippines is a good The final measure that can be taken cyanide fishing operations appear in case in point: Although its customary to curb cyanide fishing is to increase their area. In the Philippines, for management systems have vanished, it the capacity of local communities to instance, members of local fisher­ has the most numerous and the most monitor fishing practices and enforce men's organizations and cooperatives active community-based coastal re­ anticyanide regulations. Local fisher­ have been deputized as fish wardens to sources management initiatives in all men are on the water far more regular­ patrol their fishing grounds. Although of Southeast Asia. A recent survey ly than government fisheries officers local community groups cannot be covering the period 1984 to 1994 and know their areas better. With min­ expected to confront well-organized— revealed that there were 104 sites imal training—which NGOs are often and often well-armed—cyanide fish-

Volume 40 Number 8 ENVIRONMENT 33 ing vessels, they can perform impor­ demic Publishers, 1994), 139. NOTES 15. Cyanide was first used to capture fish for aquariums tant norm-setting and self-policing in the early 1960s. Since the 1970s, it has been used to activities within their community. (See capture food fish for the Hong Kong market as well. the box on page 33 for a case in which 1. Hong Kong Agriculture and Fisheries Department, 16. The figure for food fish is an estimate by the authors Live Marine Fish Imports, 1997 (Hong Kong, 1998). based on data in Johannes and Riepen, note 5 above. IMA successfully worked with a local 2. Cyanide compounds include cyanide salts such as That for aquarium fish is from "The Marine Aquarium community to suppress the practice of sodium cyanide or potassium cyanide (either solid or in Trade: Part of the Problem and Part of the Solution," solution) and the gas hydrogen cyanide. When mixed International Year of the Reef Reporters* tip sheet for cyanide fishing.) with seawater, the chemical is mostly present as cyanide week II, 1997. ions. Cyanide is one of the most rapidly acting of all poi­ 17. Johannes and Riepen, note 5 above. sons, and even small concentrations of it are extremely Closing Remarks hazardous. Entering organisms by inhalation, absorption 18. Ibid., page 15. through the skin, or ingestion, it causes suffocation by 19. International Marinelife Alliance and Bureau of Cyanide fishing is not the only threat blocking oxygen from metabolic pathways. Owing to its Fisheries and Aquatic Resources, "Briefing Paper on the widespread use in industrial processes, cyanide is avail­ Live Reef Fish Industry in the Philippines and the Strate­ to the coral reefs and other coastal able throughout the world. Although some countries gies Being Implemented to Improve and Monitor the ecosystems of the Indo-Pacific region. have imposed fairly strict controls on its distribution, in Trade" (report submitted to the presidential cabinet others—including almost all of those in Southeast meeting, Manila, 21 January 1997); and H. Cesar, Eco­ Others include the rapid conversion of Asia—it is readily available in pellet form. See National nomic Analysis of Indonesian Coral Reefs (Washington coastal habitats such as mangrove Occupational Health and Safety Commission, Cyanide DC: World Bank, 1996). swamps for or the produc­ Poisoning (Canberra: Australian Government Publishing 20. Ricky Lau, managing director of Fisherton Hold­ Service, 1989). ings, Ltd., statement made on ITN News, Hong Kong, 8 tion of charcoal; overfishing due to 3. Some divers get air through "hookahs" in their April 1996. At the time, Fisherton Holdings was Hong excess fleet capacity stemming from mouths that are attached to air compressors on support Kong's largest importer of live reef fish. boats. Others, however, "free dive," staying down only 21. The Marine Aquarium Council (MAC) was estab­ government subsidies; dynamite fish­ as long as the air in their lungs holds out. lished in the United States in late 1997 as an independent ing; haphazard tourism development; 4. C. V. Barber and V. R. Pratt. Sullied Seas: Strategies governing council to set standards, oversee environmen­ pollution by factories and mines, along for Combating Cyanide Fishing in Southeast Asia and tal certification, and promote conservation education in Beyond (Manila: World Resources Institute and interna­ the aquarium fish trade. (The council does not do certifi­ with contamination by urban wastes, tional Marinelife Alliance, 1997), 7-8. cation itself; rather, it accredits certifying organizations that apply the standards it has developed.) MAC's board 5. R. E. Johannes and M. Riepen, Environmental, Eco­ fertilizers, and pesticides; and sedi­ includes representatives of environmental organizations nomic, and Social Implications of the Live Reef Fish as well as aquarium fish collectors, exporters, importers, mentation related to deforestation. But Trade in Asia and the Western Pacific (Bonnet Hill. Aus­ the training and community-organiza­ tralia: R. E. Johannes Pty; and Wellington, New Zealand: retailers, and public aquarium managers. Pilot certifica­ Fisheries Development Associates, 1995), 21. tion activities are planned for Hawaii and the Philippines tion strategies essential to stopping in late 1998. 6. See P. Rubec, "The Need for Conservation and cyanide fishing should provide an Management of Philippine Coral Reefs," Environmental 22. Johannes and Riepen, note 5 above, page 13. important catalyst for communities to Biology of Fishes 23, nos. 1-2 (1988): 141; Johannes 23. In this test, sample fish are first examined for dam­ and Riepen, note 5 above; and F. Cruz, "Survey and Area age from hooks, nets, or spears, as well as for any visi­ address these threats as well. Assessment of the Manado Live Reef Fish Collectors, ble internal abnormalities. The lab technicians then test Local Shippers, and Exporters" (unpublished report by for the presence of cyanide. Because cyanide is rapidly The difficulty of putting an end to the International Marinelife Alliance, 1996). absorbed by internal organs such as the brain, the liver, and the intestines, these tissues are removed for testing cyanide fishing should not be underes­ 7. See P. Rubec and V. R. Pratt, "Scientific Data con­ whenever they are large enough to provide a useful spec­ timated. It is important to note, how­ cerning the Effects of Cyanide on Marine Fish," Fresh­ imen (when they are not, as is the case with small aquar­ water and Marine Aquarium 7, no. 5 (1984): 4; P. ium fish, the entire body is used as the specimen). The ever, that people have long caught and Rubec, "The Effects of Sodium Cyanide on Coral Reefs sample is then weighed, blended into a solution, and sold live fish without using cyanide and Marine Fish in the Philippines," Marine Fish Month­ subjected to an extraction and distillation process. A ly 2, nos. 2-3 (1987); and R. J. Jones and A. L. Steven, cyanide ion-selective electrode with a silver membrane and that they still do in places such as "Effects of Cyanide on Corals in Relation to Cyanide is then inserted into the distilled solution, causing silver Australia, the Caribbean, and Hawaii. Fishing on Reefs," Australian Journal of Marine and ions to replace any dissolved cyanide ions. Such dis­ Freshwater Research, no. 48(1997): 517. placement either raises or lowers the pH of the solution Nothing is intrinsically wrong with a 8. Rubec, note 7 above. (depending on the kind of cyanide present), thereby pro­ cyanide-free live fish trade as long as 9. Johannes and Riepen, note 5 above, page 25 (report­ viding an indication of the quantity of cyanide in it. it is practiced sustainably and protects ing a personal communication from Robert Richmond of 24. This bill would require that all imports of cyanide be the University of Guam). authorized by the government in advance and that the coral reef ecosystems that provide 10. R. R. Jones, "Effects of Cyanide on Coral." Live cyanide sales be "strictly controlled." As part of the con­ habitat for the fish. But cyanide fish­ Reef Fish Information Bulletin Number 3 (Noumea, trol measures, sellers and end users would need author­ New Caledonia: Secretariat of the Pacific Community, ization from the Department of Environment and Natur­ ing is fast becoming a deadly tradition 1997). al Resources to distribute, purchase, or use cyanide in many countries of the Indo-Pacific. 11. M. V. Erdmann and L. Pet-Soede, "How Fresh Is compounds and would have to file weekly reports on The challenge is to swiftly eradicate Too Fresh?: The Live Reef Food Fish Trade in Eastern such activities. Both sellers and end users would also be Indonesia," Naga, January 1996,7. subject to spot checks. The penalties stipulated by the that tradition and ensure that the great­ 12. Johannes and Riepen, note 5 above, pages 24-25. bill are stiff, with prison terms for unauthorized posses­ sion or importation of cyanide ranging from 6 to 12 est coral reefs on the planet survive 13. D. Bryant, L. Burke, J. McManus, and M. Spalding, years and fines starting at $10,000. into the 21 st century. Reefs at Risk: A Map-Based Indicator of Threats to die World's Coral Reefs (Washington, D.C: World 25. When groupers are brought up rapidly from the Resources Institute, 1998); International Coral Reef Ini­ depths of the ocean, the compressed air in their air blad­ Charles Victor Barber is a senior associate and South­ tiative, "East Asian Regional Report on the Issues and ders expands. If this pressure is not relieved, the fish are east Asia field projects coordinator in the Biological Activities Associated with Coral Reefs and Related likely to die. Relieving it is easily accomplished, howev­ Resources Program of the World Resources Institute, Ecosystems" (report presented to the 1995 International er, by inserting a hypodermic needle behind the gills. which is located in Washington, D.C. Vaughan R. Pratt Coral Reef Initiative workshop, Dumaguete City, the 26. R. E. Johannes, Words of the Lagoon: Fishing and is president of the International Marinelife Alliance in Philippines); and Rubec, note 6 above. Marine Lore in the Patau District of Indonesia (Berke­ Pasig City, the Philippines. The authors may be con­ 14. L. M. Chou, "Marine Environmental Issues in ley, Calif.: University of California Press, 1981), 64. tacted through the International Marinelife Alliance, 17 Southeast Asia: State and Development," in A. Saseku- 27. R. S. Pomeroy amd M. B. Carlos, "Community- San Jose Street, Kapitolyo, Pasig City, the Philippines mar, N. Marshall, and D. J. Macintosh, eds.. Ecology Based Coastal Resource Management in the Philippines: 1600 (telephone: 011-63-2-631-4993; e-mail: impahil and Conservation of Southeast Asia Marine and Fresh­ A Review and Evaluation of Programs and Projects, @mnl. sequel, net). water Environments Including Wetlands (Kluwer Aca­ 1984-1994," Marine Policy 21, no. 5 (1997): 445.

34 ENVIRONMENT October 1998