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Egyptian Journal of Aquatic Research 44 (2018) 139–144

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Egyptian Journal of Aquatic Research


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Full length article

Model designs of Indonesian tuna fishery management in the Indian


Ocean (FMA 573) using soft system methodology approach
Tri W. Nurani a,⇑, Prihatin I. Wahyuningrum a, Sugeng H. Wisudo a, Soraya Gigentika b, Risti E. Arhatin c
a
Department of Fisheries Resources Utilization, Faculty of Fisheries and Marine Sciences, Bogor Agricultural University, Indonesia
b
Graduate School, Bogor Agricultural University, Indonesia
c
Department of Marine Science and Technology, Faculty of Fisheries and Marine Sciences, Bogor Agricultural University, Indonesia

a r t i c l e i n f o a b s t r a c t

Article history: The Indonesian Fisheries’ Management of the Indian Ocean (FMA 573) has great tuna resources, espe-
Received 20 September 2017 cially yellowfin and bigeye. There are various problems regarding activities of tuna fisheries in this area,
Revised 7 June 2018 and now is the time to initiate an integrated management. This research aims to evaluate the biological
Accepted 7 June 2018
and technological aspects of tuna fishing activities in the FMA 573, and to design a management model on
Available online 4 July 2018
resources and fishing technology aspects of Indonesian tuna fisheries in the Indian Ocean area (FMA 573).
Model design was carried out using the soft system methodology approach. The study resulted in iden-
Keywords:
tifying three problems regarding resources and six problems regarding the technological aspect. Finally,
FMA 573
Indian Ocean
the model design of tuna fisheries management in the Indian Ocean (FMA 573) gave a solution for
Indonesian tuna fisheries management regulating the number of fishing effort in the Indian Ocean (FMA 573) as well as for realigning the use
Model design of FADs with its technical and implementation guidelines. Lastly, the study aimed at helping in building
Soft system methodology a system which is capable of guaranteeing the national implementation on the certification of compe-
tence for ship captains and crew through policymaking and budget allocation. The conceptual model
was constructed based on the definition of RDs.
Ó 2018 Hosting by Elsevier B.V. on behalf of National Institute of Oceanography and Fisheries. This is an
open access article under the CC BY-NC-ND license (http://creativecommons.org/licenses/by-nc-nd/4.0/).

Introduction activities of tuna fisheries, such as capture of small tuna, low fish
quality, and increasingly distant fishing ground (Nurani et al.,
The Indian Ocean of the Indonesian Fisheries Management Area 2015; Nurani et al., 2016; Gigentika, 2016).
(FMA 573) has great tuna resources. Nowadays, tuna fishing activ- Various problems as mentioned above, need to be addressed
ities in FMA 573 is carried out using a variety of fishing gear such through the implementation of good fishery management systems,
as longline, trolling line, and pole and line. Fish aggregating devices before they cause an adverse impact toward the sustainability of
(FADs) are fishing tools which are used by trolling line and pole resources or a decrease in the stock of tuna. Based on the above
and line. Jaquemet et al. (2010), state that FADs are intensively background, it is time for efficient management of the tuna fishing
used in tropical tuna fisheries which could concentrate fish around activities in the Indian Ocean, particularly in the waters covered by
FADs and then increase the catches. the Indonesian Regional Fisheries Management (FMA 573).
The Ministry of Marine Affairs and Fisheries created a fishery One approach that can be used to solve a complex fishery prob-
management plan (FMP) for tuna, skipjack and thunnus, which lem is soft system methodology (SSM). It is a problem-solving
has been stated in the Decree of Indonesian Minister of Marine framework designed specifically for situations where the nature
Affairs and Fisheries No. 107/KEPMEN-KP/2015. The FMP is of the problem is difficult to define (Checkland 1990; Checkland,
expected as a reference for sustainable management of Indonesian 1999; Checkland and Scholes 1990). The essence of SSM it to build
tuna fisheries. However, in practice, the FMA could not be properly a system’s model through deep understanding of problems related
implemented because of various problems that still face the to the faced phenomenon (Williams, 2005). Studies using SSM
approach in various fields have been carried out (Brocklesby,
1995; Bunch, 2003; Bunch et al., 2003; Mahregan et al., 2012). This
research aims to evaluate the biological and technological aspects
Peer review under responsibility of National Institute of Oceanography and
of tuna fishing activities in the FMA 573 and design models of tuna
Fisheries.
⇑ Corresponding author. management at FMA 573 using soft system methodology
E-mail address: triwiji@hotmail.com (T.W. Nurani). approach.

https://doi.org/10.1016/j.ejar.2018.06.005
1687-4285/Ó 2018 Hosting by Elsevier B.V. on behalf of National Institute of Oceanography and Fisheries.
This is an open access article under the CC BY-NC-ND license (http://creativecommons.org/licenses/by-nc-nd/4.0/).
140 T.W. Nurani et al. / Egyptian Journal of Aquatic Research 44 (2018) 139–144

Methods (RDs) compiles information about the organization that has been
collected, explored and discussed in the previous phase. The rele-
The framework of the problem solving approach in this study vant system will be controlled by CATWOE (Customers, Actors,
uses the soft system methodology (SSM). According to Checkland Transformation, Welltanschauung, Owners, Environmental). Three
and Poulter (2006), SSM is implemented through seven stages criteria are used as a reference for ‘‘how this transformation pro-
which are: 1) understanding of unstructured problems 2) formu- cess should be implemented”, namely 3Es: efficacy, efficiency,
lating problems in a holistic manner 3) developing the definition effectiveness.
of the problem 4) creating a conceptual model 5) comparing the The 4th phase is namely creating a conceptual model, which
conceptual model with the facts on the field 6) determining the describes the operation of the system according to the observed
desired changes, and 7) taking action for improvement. In this problems. The model is built based on the researcher’s idea to be
study, only Phase 1 to Phase 4 will be conducted, while Phase 5 able to provide solutions for problems that occur in the system.
to Phase 7 are the implementation of the model into the system, The model is made based on RD guidelines.
and that will be done in the next research.
First phase is namely understanding of unstructured problems Result
which is the comprehension towards the system’s problems which
are unstructured, complex, and inneed of a wide perspective. Prob- The disclosure of problem situations
lem comprehension is carried out through study literature, statis-
tical data analysis, field observation and discussions with The disclosure of problem situations was acquired from the
stakeholders in the research’s sites. results of phase 1 and 2 of the soft system methodology. Disclosure
An understanding of the system’s conditions has been done issues included resource aspects and fishing methods. Conditions
through: firstly, field survey to measure tuna catches that landed of tuna resources in the Indian Ocean are presented in the follow-
at several fishing ports, which were Tamperan and Pondokdadap ing sections.
(East Java) from June to September 2013, Sadeng (Yogyakarta),
Oeba and Tenau (East Nusa Tenggara) between April and July Aspect of fish resources
2014. Then, collecting fishery statistics data for the past 5 years Conditions of tuna resources in the FMA 573 have already been
from these locations to estimate the stock of tuna, as well as the fully exploited. Based on the results of catch per unit effort (CPUE),
in depth investigation through focus group discussions (FGD) with CPUE of longline in OFP Cilacap tended to decline. CPUE of longline
tuna fishery stakeholders in the Fishing Port Cilacap and Pal- in OFP Cilacap from 2011 to 2016 amounted to 5,07 tons/trip but
abuhanratu from May to July 2016. The locations of data sampling then declined to 0,15 tons/trip, respectively.
is shown in Fig. 1. The results of Schaefer model analysis (Schaefer, 1954) esti-
Then the second phase, namely formulating problems in a holis- mated that the Maximum Sustainable Yield (MSY) of tuna in the
tic manner, works to uncover the structured problem through Indian Ocean of southern waters of East Java was at 2.568,72
three basic analyses: namely intervention analysis, social system tons/year, with optimum effort (Eopt) amounting to 959 units of
analysis and political system analysis. This stage produces a clear trolling line/year. The utilization rate of tuna resources in these
picture of the complexity of the problem in rich details. A rich pic- waters for period between 2008 and 2012 was approximately
ture is basis to establishing a relevant system. 78,81% of the total allowable catches (TAC). While the estimation
Third phase is developing the problem’s definition (root defini- of the maximum sustainable potential value of tuna resources in
tions), which is an attempt to build the definition for the root of the the Indian Ocean of southern waters of Yogyakarta was at
problem including some particular views of the problem’s situa- 441,75 tons/year, with optimum effort (Eopt) amounting to 755
tion in accordance with relevant perspectives. Root definitions trips/year for trolling line. The average utilization rate of tuna in

Fig. 1. Sample data location.


T.W. Nurani et al. / Egyptian Journal of Aquatic Research 44 (2018) 139–144 141

these waters over the last 5 years (2009–2013) has already The summary of identified tuna fishery conditions in FMA 573,
exceeded its TAC value, which is equal to 119,83%. is that there are 3 problems regarding the resources aspect and 5
Tuna catches are dominated by small-sized tuna or illegal size. problems regarding the technological aspects (Table 1).
The percentages of legal-sized tuna are different between sampling
throughout the months. Sampling of tuna catches at the Tamperan
Formulation of root definitions and conceptual modeling
and Pondokdadap in June-July 2013 was compared to sampling in
August-September, with the percentage of legal-sized tuna in each
Based on these problems, the 3 root definitions (RDs) were set
location reaching 66% and 98%, respectively in June-July, and 35%
as problem solutions (Table 2). The third RDs are 1) regulations
and 90% in August-September, respectively. Meanwhile, based on
set to create or build a business system for tuna fishery that are
a sampling in August 2014 in Sadeng, the percentage of legal-
equitable, profitable and sustainable 2) evaluation and rearrange-
sized tuna only amounted to 31% of the catches. In addition, the
ment toward FADs utilization, along with technical guidelines
percentage of legal-sized tuna in Tenau and Oeba during sampling
and implementation guidelines and 3) establishment of a system
in September 2014 was approximately 29%.
that can guarantee the implementation of national competency
certification system for ship captains and crew through policy-
making and budget allocation.
Aspect of fishing technology
Fishing technology used to exploit fish resources in the FMA
573 is dominated by longline and trolling line. Longline fishing unit The making of conceptual model
with fish landing base in Palabuhanratu and Cilacap fishing port, The conceptual model is built based on formulated RDs. Con-
tended to decrease within periods between 2011 and 2015. The ceptual model in order to ensure the sustainability of tuna
number of longline fishing unit in Palabuhanratu in the periods resources is made based on a formula of RDs 1. Problems regarding
between 2011 and 2015 tended to decline from 149 units in aspects of tuna resources may be resolved by the government
2011 to 105 units in 2015. Meanwhile, the number of longline through 4 processes. Firstly, is through data collection of catches
units in Cilacap had also decreased, namely from 299 units in (logbook) of each tuna fishing vessel. Secondly, is through the
2011 to 190 units in 2015. determination of the amount of effort needed. Thirdly, determina-
Many trolling line fishing units are operated in the FMA 573 tion of the size of tuna which is classified as legal-size. Lastly, is
with fishing ports in Palabuhanratu, Sadeng, Tamperan, Pondok- setting the rules concerning by catch handling processes (Fig. 2).
dadap and in Nusa Tenggara. Trolling line is operated surrounding The problem regarding the aspect of fishing technology centers
FADs. around the utilization of illegal FADs and unreported fishing tech-
Many FADs were illegally deployed in the FMA 573, resulting in nology. These problems can be attempted by minimizing the strict
substantial number of FADs that have been deployed, but the law enforcement regarding FADs deployment licensing and setting
actual data related to the number and location of FADs deploy- the optimum number of FADs (Fig. 3).
ments are difficult to obtain. Regulations related to the installation The results showed that low quality of human resources posed a
and utilization of FADs have been created by the government, problem in tuna fisheries. The government through the Indonesian
namely the Decree of Indonesian Minister of Marine Affairs and Ministry of Marine Affairs and Fisheries, is expected to achieve the
Fisheries No.30/MEN/2004 on the installation and utilization of course of nationwide competency certification system for ship cap-
FADs. However, results showed that the implementation of these tains and crew through policy-making and budget allocation
regulations in the field have encountered a lot of problems. (Fig. 4).

Table 1
Tuna fishery problems in FMA 573.

Aspect Problems
Resource 1. Already showed symptoms of overfishing, it can be seen from the declining trend of CPUE and further fishing areas
2. A high percentage of baby tuna catches
3. Captured bycatch and protected species as well as the handling procedures for protected species have not been efficient
Fishing technology 1. Illegal FADs utilization.
2. Unreported fishing gear modification on fishing operation.
3. There are unreported information regarding improper fishing technology.
4. There is a mark down towards the size of the fishing vessel because it takes a long time to revise the size in the document.
5. Improvement of the quality of human resources, especially in terms of certification, is still constrained by the limited number of Competency
Test Place (CTP) and the Professional Certification Agency (PCA) issuing the crew certificate.

Table 2
Determination of Root Definitions (RDs).

Aspect Root Definitions (RDs)


Resource Indonesian Ministry of Marine Affair and Fisheries (MMAF) and Fisheries offices on provincial and district levels need to work together to create
and implement regulations to ensure the sustainability of tuna resources and the handling procedures of bycatch, in order to build an equitable
and profitable system of tuna fishery. These regulations should at least control the optimum fishing effort (fishing capacity), set a legal-size for
tuna that may be accepted by the market and the handling procedures of bycatch.
Fishing Technology MMAF and Fisheries offices on provincial and district levels need to work together to be re-associated with the use of FADs. It is also necessary to
make the technical guidelines and implementation guidelines, especially for deep-sea FADs.
MMAF parties and relevant agencies need to build a system that can ensure the implementation of national competence certification for
shipcaptains and crew through policy-making and budget allocation.
142 T.W. Nurani et al. / Egyptian Journal of Aquatic Research 44 (2018) 139–144

1.
Rules of Conduct 2. 3.
for tuna fishing Tuna fishing Optimum effort
logbook logbook (CPUE allocation for tuna
collection (CPUE data) data fishing unit in
data) processing every season

6. 5.
The implementation Coordination and 4.
of limited entry dissemination of Providing incentives
system based on limited entry system and sanctions for
productivity / CPUE plan implementation traders / collectors
and a legal sized and a legal sized associated with
fishing for tuna fishing for tuna fishery baby tuna
fishery

Monitoring Control
Step 1-6 Measures

Assessment criteria:
Efficacy, Efficiency,
and Effectiveness

Fig. 2. The conceptual model to ensure the sustainability of tuna resources.

1. 2.
Holistic academic Refinement of 3.
study on the use of regulation related Public
deep sea- FADs for to the use of deep
- consultations
tuna fishery sea FADs

6. 5. 4.
Stipulation of the Formulating The enhanced design
regulations on the technical and of regulation draft
use of deep sea
- implementation related to deep
- sea
FADs by the guidelines of deep
-
Minister of Marine FADs utilization
Fisheries
seaFADs utilization

Monitoring Control
Step1 - 6 Measures

Assessment criteria:
Efficacy, Efficiency,
and Effectiveness

Fig. 3. The conceptual model for the rearrangement of FADs utilization.


T.W. Nurani et al. / Egyptian Journal of Aquatic Research 44 (2018) 139–144 143

Fig. 4. The conceptual model to achieve the course of nationwide competency certification system for ship’s captains and crew.

Discussion of trolling line with FADs utilization threatens the sustainability of


tuna resources in the northern waters of Andhra Pradesh India.
Utilization of tuna resources in the FMA 573 of the Indian Ocean Soft system methodology has helped in solving problems
needs to be done with precautionary principles. This was revealed related to resources and fishing technologies in the Indian Ocean.
by Pillai and Satheeshkumar (2012, 2013) who stated that catches Identification of problems was done by involving stakeholders
of tuna in the Indian Ocean rose sharply in the period between through focus group discussions (FGD). Root definitions (RDs) were
1980 and 1995 and continued increasing until 2005. The precau- established to address the existing problems. Checkland (1999)
tionary principle is also reflected in the Fishery Management Plan states that the root definition (RDs) was built as an expression of
(FMP) of Indonesian Tuna, Skipjack and Mackerel Tuna (Ministry the activities that led to the results of the transformation process.
Decree No.127/2015). By referring to the data of research reports Based on RDs that have been formulated and analyzed with
from IOTC scientific committee (Moreno and Herrera, 2013), max- CATWOE and 3E criteria, a conceptual model to overcome the
imum sustainable yield (MSY) of big eye tuna amounted to problems that were identified in tuna fishing activities in Pal-
132.000 tons/year, with average catch for all members of IOTC in abuhanratu and Cilacap fishing port, will be designed. The model
the period between 2008 and 2012 amounting to 107.603 tons. will be built based on the understanding of the research team in
MSY of yellow fin amounted to 334.000 tons, with an average pro- order to build the ideal system for tuna fishery, which will then
duction of 317.000 tons/year in 2008–2012. Based on both of these provide good social and economic benefits for resource users while
references, there’s a bigger opportunity to make use of tuna ensuring the sustainability of the tuna fishery resources. In this
resources in the Indian Ocean, but the activity should be done with case, the study covers resources and fishing technology.
the precautionary principle. The conceptual model to ensure the sustainability of tuna
FADs are one of the problems in the waters of the Indian Ocean. resources was made based on a RDs 1 formula. Problems regarding
It is a fishing tool that is useful in improving the effectiveness of tuna resource aspects may be resolved by the government through
fishing operations. FADs are widely used in these waters, and many the productivity data collection/CPUE (logbook) of each tuna fish-
of them are illegal. Regulation related to FADs utilization has been ing vessel, timing and amount of tuna fishing effort, as well as
created by the Indonesian government, but its implementation in the involvement of fish traders in undersized tuna market (baby
the field is often violated. Another issue associated with FADs uti- tuna). This conceptual model should be used by MMAF and provin-
lization is that the catches are dominated by baby tuna or under- cial/district level of DFM to ensure the sustainability of tuna
sized tuna. Fromentin and Fonteneau (2001), state that the resources (Fig. 2).
length of maturity of yellowfin tuna reaches a fork length of about Problems regarding fishing technological aspects center around
105 cm, weight 25 kg and age of 2.8 years; while bigeye reaches a the use of illegal FADs and unreported fishing technology. These
fork length of 115 cm, weight 31 kg and age of 3.5 years. Mean- problems can be minimized by strict law enforcement regarding
while, Rohit and Rammohan (2009) state that the tuna with a fork FADs deployment licensing, that provide an understanding
length of 80 cm have mature gonads, and are expected to have first towards fishery businessmen to whom FADs ownership belongs
mature gonads within the size of 90–95 cm. The uncontrolled use to. They can also be solved through setting the optimum number
144 T.W. Nurani et al. / Egyptian Journal of Aquatic Research 44 (2018) 139–144

of FADs. The conceptual model was built based on a formula of RDs has funded for this research through BPPTN IPB funding activities
2, namely the realignment of FADs utilization to provide guaran- in 2016.
tees of conductive fishing areas for tuna fishing activities (Fig. 3).
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