Management plan for the sea cucumber fishery of Yap State

Management plan for the sea cucumber fishery of Yap State By Magele Etuati Ropeti 1, Kim Friedman 2, Kalo Pakoa 3 and Andy Tafileichig 4 Secretariat of the Pacific Community Noumea, New Caledonia, 2010 1 Coastal Fisheries Management Officer, SPC 2 Senior Reef Fisheries Scientist, SPC 3 Reef Fisheries Officer, SPC 4 Chief, Marine Resources Management Division, Yap

Copyright Secretariat of the Pacific Community (SPC) 2010 Original text: English Secretariat of the Pacific Community Cataloguing-in-publication data Ropeti, Magele Etuati Management plan for the sea cucumber fishery of Yap State / by Magele Etuati Ropeti, Kim Friedman, Kalo Pakoa and Andy Tafileichig 1. Trepang fisheries Micronesia (Federated States). 2. Fishery management Micronesia (Federated States). I. Ropeti, Magele Etuati. II. Friedman, Kim. III. Pakoa, Kalo. IV. Tafileichig, Andy. V. Title. VI. Secretariat of the Pacific Community. 639.709966 AACR2 ISBN: 978-982-00-0408-5

CONTENTS Foreword 1 Acknowledgements 2 List of acronyms 3 Map of Yap State 4 1. Introduction 5 2. Background 5 3. Status of the sea cucumber fishery in Yap 6 4. Existing management strategies 7 5. General provisions for management 7 6. Marine tenure system and institutional arrangements 7 7. The Management Plan 9 7.1 Preparation of the plan 9 7.2 Vision 9 7.3 Goal 9 7.4 Purpose of the plan 9 7.5 Suggested management undertakings 9 7.5.1. Develop a legal framework for sea cucumber fishery management 9 7.5.2. Develop assessment mechanisms for the fishery 10 7.5.3. Develop systems to control harvest and export 11 7.5.3.1. Designation 11 7.5.3.2. Fishing seasons 11 7.5.3.3. Sea cucumber species for commercialisation 11 7.5.3.4. Collection and harvesting 11 7.5.3.5. Commercialisation 11 7.5.3.6. Protected or reserve areas 12 7.6. Independent surveys and assessments 13 7.7. Awareness programmes 13 7.8. Sea cucumber hatchery interactions 13 7.9. Management Plan review 13 7.10. General advice 13 7.10.1. Why piece per 10 kg package rates for premium species groups? 13 7.10.2. Increasing productivity through splitting or moving sea cucumbers 14 8. Conclusion 15 3

Appendix 1 Appendix 2 Appendix 3 Appendix 4 Appendix 5 Appendix 6 Appendix 7 Appendix 8 Yap municipalities and outer islands where fishing for sea cucumber takes place Marketable species groups found in Yap State Commercial species groups found in Yap State Sea Cucumber Buying Form Sea Cucumber Export Form Suggested maximum piece rate for export of premium species groups of dry sea cucumbers (bêche-de-mer) Suggested dry weight quotas for standard sea cucumber species groups per season List of people consulted 4

Foreword Sea cucumber or bêche-de-mer is a natural resource in the State of Yap s marine ecosystem. Since limited commercial exploitation of the resource by Captain David Dean O Keefe in the late 1800s, there has been no harvest of bêche-de-mer for export until recently. From around 2001 through most of 2007, commercial harvest of the resource resumed, but in an uncontrolled, unreported and unregulated manner. In October 2007, based on concerns raised by the public, traditional leadership and elected officials, an executive decree was issued imposing a temporary moratorium on the commercial harvest of all species of bêche-de-mer in the territorial waters of Yap. The basis for the temporary moratorium was to allow sufficient time to develop and put in place a regulatory regime that would ensure sustainable harvest of the resource, and to develop a management plan for the resource that could be used by the Marine Resources Management Division. It was in this regard that the State of Yap enlisted the technical assistance of the Secretariat of the Pacific Community (SPC). In June 2008, Dr Kim Friedman and Mr Magele Etuati Ropeti from SPC visited Yap and over a combined period of two weeks conducted interviews, workshop sessions and consultations with local stakeholders. This Management Plan is based on their work. The State Government of Yap is grateful to SPC for its assistance, particularly for the expert advice of Dr Friedman and Mr Ropeti. This plan provides a general guide to how Yap State can manage its bêche-de-mer resource on a sustainable basis for the long term. While the substantial income benefits available from the harvest of the resource are beyond debate, it is prudent for Yap State to maintain the integrity of its marine biological diversity to ensure that the harvest of the resource and the income derived from it remain sustainable for generations of Yapese to come. Sebastian L. Anefal Governor, State of Yap 1

Acknowledgements The invaluable assistance of the following is gratefully acknowledged: His Excellency the Governor, the Lieutenant Governor, and staff of the Marine Resources Management Division; Mr Michael Gaan, Director of the Department of Resources and Development; Mr Andy Tafileichig, Chief of the Marine Resources Management Division; and all stakeholders, resource owners, community representatives and agents who took part in the consultation process. 2

List of acronyms AG BDM CFP COT DHS EPA FSM HPO MRMD R&D SoY SPC YFA YSHPO Attorney General bêche-de-mer Coastal Fisheries Programme (SPC) Council of Tamil Department of Health Services Environmental Protection Agency Federated States of Micronesia Historical Preservation Office Marine Resources Management Division research and development State of Yap Secretariat of the Pacific Community Yap Fishing Authority Yap State Historical Preservation Office 3

Map of Yap State (municipalities and outer islands) 4 Source: http://upload.wikimedia.org

1. Introduction The management plan for the sea cucumber fishery in Yap was developed in response to a request from the Yap State Marine Resources Management Division (MRMD) for technical assistance from the Secretariat of the Pacific Community s (SPC) Coastal Fisheries Programme. The SPC Coastal Fisheries Programme facilitated the process of developing the plan through wide consultation with resource custodians and industry stakeholders. Data from fieldwork in Yap were also incorporated. Scientific advice and relevant information on the fishery were provided on site to enable all parties to make informed management decisions. Like most other small island states, Yap has limited land for agriculture development. However, it possesses a vast ocean area rich in marine life and fisheries resources, including sea cucumbers. Although sea cucumber species are not traditionally used as a protein source by Yap communities, the fishery has been increasingly harvested due to the high value of dried sea cucumber (bêche-de-mer) on the Asian market. Easy access and quick cash returns have seen the sea cucumber fishery become one of the most important sources of income for some coastal communities. Given the potential benefits for all communities and the likelihood that the fishery will collapse if present harvest rates continue without a management framework, a more fair and precautionary approach has become necessary to prevent unsustainable exploitation. This plan provides a management framework that will enable the State Authority to guide the exploitation and harvesting of the sea cucumber fishery in Yap. The recommended management actions require close collaboration between government, resource owners, communities and agents to ensure sustainable utilisation and to optimise economic benefits for everyone. 2. Background The State of Yap, comprising the main islands of Yap, Gagil, Tamil and Rumung, is one of the four states that make up the Federated States of Micronesia (FSM). The others are Pohnpei, Chuuk and Kosrae. Yap is the westernmost island of FSM and is located midway between Guam and Palau. The island of Yap has 10 municipalities that oversee less than 120 km2 of shallow-water reef and lagoon, although there are about another 134 outer islands, most of which are low-lying atolls (Appendix 1). The outer islands stretch eastward for approximately 1,200 km, with 12 of them being the most important (i.e. Eauripik, Elato, Fais, Faraulep, Gaferut, Ifalik, Lamotrek, Ngulu, Olimarao, Piagailoe (West Fayu), Pikelot, Sorol, Ulithi and Woleai atolls. Further outlying municipalities are Satawal, and Faraulap. The State of Yap has an estimated population of 12,000, with 66% residing on the main island of Yap proper and 34% on the outer islands. 5

3. Status of the sea cucumber fishery in Yap The sea cucumber fishery in Yap State is likely to have been exploited for several short periods since the 1800s. Exports probably occurred when the Japanese were present after 1914, and a more recent spell of fishing activity was noted around 1995. Fishing was quickly stopped in 1995 due to concerns over the status of stocks and the sustainability of the fishery within Yap s relatively small reef system. With the expansion of the market in China and increases in product value accompanied by a decline in the sea cucumber fishery in other parts of the Pacific, fishing effort again focused on Yap in 2003. Data from the beginning of this most recent period of fishing and related export activity are not readily available. When the fishery began to gain momentum in 2006 and 2007, some data were collected by the MRMD before a ninemonth moratorium was imposed in September 2007 due to concerns over unregulated fishing in the limited reef and lagoon area. Unlike the long-interconnected reef systems associated with the large land masses that support this fishery in the Western Pacific (Papua New Guinea, Fiji, Solomon Islands), the fishery in Yap was recognised as being susceptible to overfishing due to its limited scale and the remoteness of some of the outer island systems. Fishing records sourced from the three agents/processors active during the latest period of harvesting suggest that total exports from both Yap and the outer islands of Yap State may have reached 17.3 tonnes dry weight for 2007 alone (equivalent to approximately 230 tonnes of wet weight product). This is an alarmingly large catch from a fishery with such a limited area, and it would have been worth a significant amount of money if large specimens were exported at market rates. An examination of the sea cucumber species that made up a 10-tonne sample of these exports showed that nine species groups were represented, with the blackfish group (Actinopyga miliaris and Actinopyga spp.) and lollyfish group (Holothuria atra, and sometimes H. edulis) being the most important in terms of weight. Other records, which provided information on day fishing, showed that in late 2007 up to 1.5 tonnes wet weight of the blackfish group was being taken prior to the closure of the fishery by one agent/processor alone, who bought sea cucumber from fishers for 21 days out of 30. This represents an unusually heavy period of exploitation, especially if fishers were targeting only adults of the correct size and processing a quality product for market. However, anecdotal evidence suggests that the fishery was not operating at an optimum rate during this period, with product size and quality compromising the potential for a sustainable future. The moratorium and development of the management options presented in this document were therefore timely. Blackfish BSF BTF Curry Elephant trunk Greenfish Lolly Sandfish Snakefish 6 Figure 1. Indicative species composition of 10 tonnes of exports, based on data collected by MRMD. A recent independent fishery survey by SPC and the University of Guam (Kerr, Netchy and Hoffman 2007) to document the state of the resource in Yap identified at least 20 commercial species of sea cucumber (Appendix 2). The report revealed signs of impact from fishing pressure (or deficiencies in environmental capacity), but highlighted that stocks were not as depleted as in other fisheries in the Pacific and therefore offered some potential for commercialisation.

4. Existing management strategies Yap State does not have a current management framework for exploitation of the sea cucumber fishery apart from a limited amount of general survey data from fieldwork conducted in 2006 and 2007. This is partly because the people of Yap have never considered sea cucumber a valuable species, and the one processing business, which was run by a single operator at this time, was not seen as a major issue or threat to the resource. Efforts by MRMD to capture information on the rate of export of processed sea cucumber over recent years have revealed an increase in the number of shipments leaving the state. The entry of two new sea cucumber export businesses in 2006 resulted in price competition, traditional ownership rights being challenged in some areas, poaching, and increased fishing pressure from local communities. Despite this increase in activity, there is no formalised data collection system in place and agents operate in a relatively unregulated environment. Without a proper system in place, there are no reliable reports on the fishery to support or contradict claims of stock decline in some areas. This fact, along with anecdotal reports of community unrest, prompted the Yap s governor to impose a statewide moratorium on the sea cucumber fishery. The intention was to suspend all operations while the state government developed a management plan for the fishery. The moratorium was declared for a nine-month period that was to end on 10 July 2008. While the Government of Yap took the initiative in closing the sea cucumber fishery temporarily, other issues started to emerge in terms of traditional ownership and property rights that also needed to be addressed. MRMD is a divisional branch office established by law under the Department of Resources and Development. Since its inception, MRMD has had responsibility for the conservation, management and development of SOY s marine resources. However, according to the Fishing Authority Act of 1979, the Yap Fishing Authority (YFA) has a similar, if not identical, role. Efforts to address this overlap in the past have been unsuccessful. 5. General provisions for management The FSM Constitution gives its four state governments jurisdiction over their respective waters. In Yap State, the Constitution recognises traditional rights and ownership of natural resources within and beyond 12 miles from the island baselines. For resource management purposes, the Yap State Code (laws) caters for a wide range of management options that are legally recognised. For instance, Title 18 of the Code provides for a legal entity to promote, develop and support commercial utilisation of living marine resources within the state and to grant the authority to adopt and enforce rules and regulations concerning conservation, management and exploitation of all living resources in the State Fishery Zone and internal waters. In addition, it allows the governor to impose temporary moratoriums upon advice from the relevant authority. The state government has submitted a bill on the conservation of sea cucumber that is now awaiting a public hearing. The bill provides for legal recognition of this Management Plan and regulation of the harvest, exploitation, marketing and export of sea cucumber. 6. Marine tenure system and institutional arrangements The State Government of Yap is made up of four branches: executive, legislative, judicial and customary. In contrast to its three sister states, Pohnpei, Chuuk and Kosrae, which have only the first three branches, Yap s customary branch is paramount as it has a very strong say over custom, behaviour and development. It is headed by a Council of Chiefs, consisting of chiefs from the main and neighbouring islands. The chiefs are considered the upholders of Yap custom and, according to the Constitution of Yap State (Article III, Section 2), Due recognition shall be given to tradition and customs in providing a system of law, and nothing in this Constitution shall be constructed to limit or invalidate any recognised tradition or customs. Principal 7

functions of the Council of Chiefs are to consider developments in Yap, advise the government on matters affecting customs, and resolve problems and disputes in customary ways whenever possible. Despite differences in culture and language within the state of Yap, and its neighbouring islands have traditionally been linked by a system of political, economic and religious ties. The tribute system, which ended around the turn of the 20th century, obligated neighbouring islanders to send tributes to the chief of one district village on Yap at set intervals, as well as religious gifts to specific religious functionaries. Gifts from specific families to their Yapese overlords were also required. These practices still operate, but they are increasingly weakened by the effects of current political, economic, religious and educational systems. Systems of control and tenure of marine areas and resources fall into three broad and overlapping categories. In all islands, however, marine areas are not owned by the chief(s) but are only managed by them in consultation with other clan elders, for the benefit of the whole clan. On Ulithi Atoll, for example, all the reef and lagoon areas belong to the highest-ranking clan. This clan also presides as the paramount chief of the atoll. The marine areas of the atoll are, however, divided into a number of sections, which are controlled by the chief of each clan. Members of a clan have the right to fish in any sections of the atoll that belong to their own clan. A slightly different tenure and rights system has been adopted on Woleai Atoll. Here, the reef and lagoon are divided up and controlled by the ranking clan in each part of the island or village. There is no paramount chief who has jurisdiction over the entire atoll. The head of each ranking clan, in consultation with other elders, controls his clan s own areas, determining when and if they should be closed as well as deciding on communal fishing. Individuals are able to fish within their own clan s waters at any time. The third form of tenure and use rights is practised on Satawal Atoll. Here, the chiefs of the three ranking clans divide the responsibilities for island affairs among themselves, with one chief appointed to the role of chief of the sea. This person has the right to control the usage of marine resources and fishing methods. Use of the fringing reef area is open to anyone, but use of all other fishing areas (e.g. mounts, uninhabited atolls) requires permission from the chief of the sea, who also has rights over food resources and ownership of the reefs. Yapese communities recognise that culture and natural resources, such as the land, reef and coastal areas on which they depend, are fully intertwined, and that a healthy environment is the foundation of a healthy culture. 8

7. The Management Plan 7.1 Preparation of the plan The actions outlined in this plan are designed to guide the management of the sea cucumber fishery in the State of Yap. They were identified through discussions with the Governor of the State, the Hon. Sebastian L. Anefal; the Lieutenant Governor, the Hon. Anthony M. Tareg; the Director of the Department of Resources and Development, Mr Michael Gaan; resource owners; government officials; and stakeholders during a twoday consultation workshop conducted at the Small Business Centre Training Room on 17 and 18 July 2008, and fieldwork carried out during a two-week assignment in Yap. 7.2 Vision Create community and government cooperation to sustain harvests and optimise incomes, while maintaining reef and local coastal environments. 7.3 Goal The goal of the Management Plan is to promote Economic improvement for the people of Yap, while maintaining sustainable harvest and stock levels. 7.4 Purpose of the plan This Management Plan presents a guide for the exploitation of the State of Yap s sea cucumber fishery, and the harvest, processing and export of resulting products. In the absence of any substantive technical information or scientific assessment, the purpose of the plan is to impose the principles of a precautionary approach to the exploitation of the sea cucumber fishery to achieve its stated goal. 7.5 Suggested management undertakings 7.5.1 Develop a legal framework for sea cucumber fishery management As previously discussed, the sea cucumber fishery has been harvested periodically on an ad hoc basis until recently, when three local agents with overseas partners began to export processed sea cucumber on a regular basis. Competition between agents resulted in higher prices being offered to rural communities for the harvest of sea cucumbers from their reefs and fishing areas. As agents demanded more product, there were reports of conflict and disputes between resource owners and users, an increase in illegal access and poaching from reefs with a lack of care for the marine environment and, according to reef owners, a decline in the numbers of some sea cucumber species in their lagoon and reef areas. The reports have become a major concern for the state government, which wants to resolve the social problems in rural communities. As a matter of priority, the government wants to develop a legal framework for the operation and management of the sea cucumber fishery in the state. To achieve this outcome, the following are recommended. 9

State government undertakings Identify which authority and legal entity should be mandated to implement the Sea Cucumber Fishery Management Plan. Give the mandated authority responsibility for implementing the Management Plan, conducting assessments and monitoring of the fishery, and advising and recommending necessary actions to the state government in a timely manner. Consult with local communities, resource owners, stakeholders and agents when imposing management actions. Update all stakeholders with relevant information on the fishery, such as international prices, market preferences and resource awareness programmes. Agent undertakings Contribute to the development of the framework through consultations with MRMD, resource owners, communities and fishers. Adhere to the rules described in the resulting Management Plan. Contribute to the assessment and monitoring of the fishery through in-kind or funding assistance. 7.5.2 Develop assessment mechanisms for the fishery The consultations with the government and MRMD showed that there was a lack of information on the status of the fishery. MRMD does not have the capacity in terms of financial support and human resources to conduct comprehensive assessment surveys. The practice of hiring independent scientists to carry out stock assessment surveys is expensive and does not always result in development of local capacity, with some reports contradicting the views of local communities. To establish the suggested management regimes and enable the authority to apply appropriate controls, commercial activity related to sea cucumber harvests and exports and sea cucumber stocks must be monitored and surveyed. These actions will provide access to both fishery and fishery-independent information on a routine basis. MRMD undertakings Request technical assistance from regional and international partners in developing capacity for local staff to design and implement in-water surveys that are independent of fishing, to establish baseline data on sea cucumber stocks. Collaborate with resource owners on assessment surveys. Request technical assistance from regional and international partners in developing capacity for local staff to interpret fishery records and assess exports. Develop a database for storing survey results and fishery data. Produce timely reports on stock status, and advise government and stakeholders of appropriate regimes. Look for sources of funding to assist survey and assessment activities. Agent undertakings Provide assistance, where necessary, to enable resource surveys to be completed. Cooperate with MRMD and communities to comply with management actions. 10

7.5.3 Develop systems to control harvest and export To properly monitor activities in the fishery, the following controls and requirements should be implemented as precautionary measures to safeguard the resource. 7.5.3.1 Designation The Management Plan should cover all operations of the sea cucumber fishery in the State of Yap, including the outer islands. All sea cucumber products that are exported should leave the state through one exit point, namely the shipping port/airport in Colonia. 7.5.3.2 Fishing seasons Fishing should be permitted for only part of the year (suggested season August to December). Supporting argument: This would give the fishing grounds a rest period and provide a time for MRMD to conduct out of season independent checks of sea cucumber stocks and habitat. It would also allow time for MRMD to collate fishery records for reporting back to state authorities and fishery stakeholders to advise them on the season s activity and catch prior to the opening of a new season s fishing. In addition, concentration of fishing would allow targeting of compliance checks and selling of product to markets at a time when prices are generally higher due to Chinese New Year. 7.5.3.3 Sea cucumber species for commercialisation The authority should restrict the sea cucumber species harvested and collected for export to those listed in Appendices 3, 6 and 7. Supporting argument: A fishery in decline will often try to commercialise new species to maintain income. If new species are suggested for export, scientific advice should be sought before they are considered for inclusion in the export list. 7.5.3.4 Collection and harvesting The use of compressed air or underwater breathing apparatus (SCUBA and hookah) and trawl-style nets should be strictly prohibited, with only hand collection of sea cucumber allowed. MRMD and agents should encourage wet sales of sea cucumbers, especially on the main island. Supporting argument: Wet live product sold in buckets to agents is the current mode of operation in Yap, and allows agents to buy product that conforms to Management Plan and market specifications. Importantly, it allows rejected catches to be returned live to the water if they are not suitable for processing. This practice will not be possible for outer islands, and agents are encouraged to work with their island counterparts to maintain the required standards and thus avoid discards. 7.5.3.5 Commercialisation The authority should aim to export only A grade product from Yap. Supporting argument: The application of this policy will return the same or greater income for the same amount of or fewer sea cucumbers marketed. Time spent in encouraging high-grade processing will ensure a high market return for the same product. The authority should limit the number of agents licences to a maximum of three. Supporting argument: Given the lack of information on the fishery and its small size in terms of area, the fishery is unlikely to be able to support a large number of agents. Limiting the number will also help in establishing good communication between agents and fishers, and agents and MRMD. 11

Agents should supply completed Sea Cucumber Buying Forms (Appendix 4) to MRMD on request or at the end of the fishing season. Supporting argument: Information on the form will show the source and wet weight of sea cucumbers caught and will give a broad overview of where product is originating, therefore providing a spatial signal on catches for the fishery. As daily catches are likely to be sold, the information will have the added value of giving a rough appreciation of catch rates and their variation over time. At this time, the dry-weight column of the form is being set as a non-obligatory field as product bought wet is likely to take some time to process and dry (several days to a week). Agents should supply completed Sea Cucumber Export Forms (Appendix 5) to MRMD at least two weeks prior to product being exported. Supporting argument: Agents should be required to present completed forms and access to packed products to MRMD two weeks before shipping to give the authority time to carry out product inspections to determine whether they comply with the management guidelines. The export sheet is the key to controlling the size (and therefore reproductive age) of sea cucumber products leaving Yap, and enables information to be gathered at a reliable (and cost-effective) point in the fishery chain. Commercial species groups described as premium in the Management Plan should be exported only in 10 kg packages (or weight equivalent), as noted under the weight controls outlined in Appendix 6. Supporting argument: Ensuring that larger sea cucumbers are exported will allow animals to have a minimum of one season of spawning in the wild before they are harvested, thus maintaining the natural cycle or engine of the fishery and ensuring future harvests. Agents would be allowed a small variation in the specifications of individual specimens under the 10 kg package system (Appendix 6; also see point 7.10.1) as long as the average weight per package was correct. Packages should include only a single species group and be clearly labelled for ease of checking by the authority when inspections are made prior to export. Commercial species groups described as standard in the Management Plan should be exported only under the weight controls outlined in Appendix 7. Supporting argument: Monitoring smaller and lighter low-value species by size puts an unrealistic compliance burden on the managing authority and therefore a conservative quota option should be adopted (which could be divided among licence holders). Total-weight export checks are made of bags of product, but species checks should also be made to ensure there is no product substitution (for undersized premium species). Agents are not permitted to burn mangrove timber for processing sea cucumbers. It is advised that other line agencies, such as Customs and Quarantine, be involved in the inspection of export shipments. Supporting argument: Product contravening the Management Plan should not be exported from Yap and therefore other line agencies should have skills in identifying dried sea cucumber products. 7.5.3.6 Protected or reserve areas The authority should advise resource and reef owners to designate parts of their fishing grounds (at least one in every municipality) as reserve areas where collection of sea cucumber is prohibited. Supporting argument: The prohibited areas would ensure at least partial security for important commercial species, and act as an unfished control to help in assessing the effects of fishing pressure. 12

7.6 Independent surveys and assessment MRMD should conduct a fishery-independent survey ( stock assessment ) on designated fishing or closed areas at least every two years. Supporting argument: The purpose of this survey is to provide an overview of the fishery and its important habitats, over and above fishery records. The survey should be carried out by the authority with the participation of local stakeholders and should take a maximum of two weeks. Costs for the survey could be shared by the authority and agents. 7.7 Awareness programmes An industry meeting (Management Association Committee), including community leaders and sea cucumber industry and government participants, should be convened annually (generally during the closed season ) to review the last season s catch, independent survey results and other general submissions. Supporting argument: This meeting will facilitate the reporting process, and provide an opportunity to accept submissions from other parties to allow a clear picture of the resource s status and to allow community concerns to emerge for consideration and possible realignment of management settings prior to the reopening of the fishery. MRMD should advise communities and fishers of information on the biology, the life cycle and general management measures for sea cucumbers. Supporting argument: To implement the recommended management actions successfully, the authority needs to engage local people and fishers in understanding and supporting the general management vision. As regulations are not likely to control the individual actions of local fishers comprehensively, extensive awareness with well-targeted information will benefit long-term management goals. 7.8 Sea cucumber hatchery interactions The authority should seek advice from regional and international partners on the development of a hatchery policy. The authority should develop guidelines for hatchery operation and any other associated activities to safeguard against possible sea cucumber fishery and environmental impacts. Supporting argument: The artificial breeding and rearing of sea cucumbers can be seen as a way forward for export and restocking purposes. However, the establishment of a hatchery in Yap and the Pacific is a concept that is still largely in the research phase and requires careful management to ensure benefits are wide ranging. 7.9 Management Plan review This Management Plan should be reviewed and revised as needed to respond to levels of activity and reports on the fishery, at first on an annual basis. Supporting argument: Once the fishery matures, it should be possible to establish more accurate estimates of the effects of management measures, and reviews might then be necessary only every two years. The review process will allow the authority to advise the state government on the status of the fishery and to suggest new management measures accordingly. 7.10 General advice 7.10.1 Why piece per 10 kg package rates for premium species groups? Yap has a small sea cucumber fishery spread over a limited area that is very vulnerable to overfishing through the removal of too much stock. To date, sea cucumbers of all sizes have been sold, including small animals that have not had a chance to breed and that also have a much lower market value. 13

To be successful, Yap should target only larger sea cucumbers to ensure that enough mature animals remain in the water to breed and thus maintain the productivity of the fishery. In addition, larger animals attract the best prices. If only large A grade product is exported from Yap, the same or greater income can be obtained from fewer sea cucumbers. If these rules are not followed, the removal of large numbers of stock, especially animals that have not had a chance to breed at least once, will adversely affect the production of future generations of sea cucumbers. When more stock is taken from the fishery than can be replaced by natural reproduction, sea cucumber populations can no longer be self-sustaining. This would result in the collapse of the relatively small Yap fishery in a short period of time (<5 years for some species). To help ensure that only the largest individuals are targeted, while giving agents a small amount of leeway in terms of size variation and facilitating checking by the government authority, bêche-de-mer product will not be checked by weight per individual sea cucumber, but in the case of premium species, in 10 kg packages. These packages may weigh more than 10 kg if they contain the correct number of sea cucumbers (Appendix 6), but they may not weigh less than 10 kg. Each package should contain only one species group, packed in such a way that it is easy for the authority to identify the group and check the count of individuals when checks are made prior to export. It is suggested that when shipments are checked prior to export, any package that contains too many animals (beyond the limit set for 10 kg packages of that species) be confiscated. Repeated offences should result in the suspension of the export licence. 7.10.2 Increasing productivity through splitting or moving sea cucumbers The practice of cutting sea cucumbers in half to potentially increase their total number is used in Yap and the outer islands. Although the breaking of sea cucumbers is a natural way for some small, lower-value species to reproduce (along with sexual reproduction), it is not a recommended method of increasing the availability of sea cucumbers in the fishery and can result in considerable mortality. In a number of cases, especially with moderately valuable sea cucumbers, juveniles are often found at high density in shallow-water inshore areas. A proportion of these animals often die due to the coincidence of low tides and afternoon sun in very shallow areas. Moving part of this stock from inshore to deeper-water shallows where numbers are at lower density offers an alternative to cutting sea cucumbers to allow an increase of total numbers in the fishery. This opportunity is especially appropriate for the blackfish group in Yap. 14

8. Conclusion Market demand for processed sea cucumber products is projected to continue to increase due to economic growth in the main Asian markets. This will place increasing pressure on local operators and communities in Yap. Lucrative offers are likely to be made by overseas buyers as less product enters the market due to the dramatic decline in stock experienced by most, if not all, other Pacific Island countries and territories. The sea cucumber fishery in Yap will benefit all sectors and generate revenue for the state government if it is managed properly. This simple Management Plan does not provide a quick fix for existing problems. However, the suggested management actions provide a framework to safeguard the resource and ensure it is exploited in a sustainable manner while a catch history is developed and an adaptive management identifies the areas most in need of intervention. To successfully implement this plan, there is a need for all levels of governance, especially the government and traditional resource owners, to collaborate with the industry. In addition, regional and international partners should continue to provide technical assistance when needed. 15

Appendix 1: Yap s municipalities and outer islands where fishing for sea cucumber takes place Municipality Activity in Activity in Outer island fishery 2003+ fishery 2003+ 1 Gagil Ulithi Atoll 2 Rumung Sorol Atoll 3 Maap Ngulu Atoll 4 Tamil Fais Island 5 Fanif Eauripik Atoll 6 Weeloey Woleai Atoll 7 Rull Ifalik Atoll 8 Dalipebnaw Faraulap Atoll 9 Kanifaay Elato Atoll 10 Gilmaan Lamotrek Atoll 11 Satawal Island 12 Gaferut Island Uninhabited 13 Olimarao Atoll Uninhabited 14 Piagailoe Atoll Uninhabited 15 Pikelot Island Uninhabited 16

Appendix 2: Marketable species groups found in Yap State No. Present Marketable species group Genus species name(s) 1 Black teatfish (BTF) Holothuria whitmaei 2 White teatfish (WTF) Holothuria fuscogilva 3 Prickly redfish (PRF) Thelonota ananas 4 Sandfish and golden sandfish (SandF) Holothuria scabra and Holothuria scabra versicolor 5 Surf redfish (SRF) Actinopyga mauritiana 6 Stonefish (StoneF) Actinopyga lecanora 7 Blackfish (BF) 8 Leopardfish or tigerfish (TF) Bohadschia argus Actinopyga miliaris and Actinopyga spp. 9 Curryfish (CF) Stichopus herrmanni and Stichopus vastus 10 Amberfish (AF) Thelonota anax 11 Greenfish (GF) Stichopus chloronotus 12 Elephant trunkfish (ETF) Holothuria fuscopunctata 13 Brown sandfish (BSF) Bohadschia vitiensis and Bohadschia bivittata and Bohadschia koellikeri 14 Lollyfish (LF) Holothuria atra (can include PF) 15 Pinkfish (PF) Holothuria edulis 16 Snakefish (SnakeF) Holothuria coluber and Holothuria (Semperothuria) non flavomaculata 17 Flowerfish (FF) Pearsonothuria graeffei 18 Chalkfish (CF) Bohadschia similis 19 Peanutfish (PF) Stichopus horrens 20 Candycanefish (CCF) Thelenota rubralineata 21 Deepwater redfish (DRF) Actinopyga echinites 17

Appendix 3: Commercial species groups found in Yap State Premium marketable species group Scientific name(s) Standard marketable species group Scientific name(s) 1 Black teatfish (BTF) Holothuria whitmaei 1 Lollyfish (LF) Holothuria atra 2 White teatfish (WTF) Holothuria fuscogilva 2 Pinkfish (PF) Holothuria edulis 3 Prickly redfish (PRF) Thelenota ananas 3 Snakefish (SnakeF) Holothuria coluber and Holothuria (Semperothuria) non flavomaculata 4 Sandfish (SandF) Holothuria scabra 4 Flowerfish (FF) Pearsonothuria graeffei 5 Golden sandfish (GSandF) Holothuria scabra versicolor 5 Chalkfish (CF) Bohadschia similis 6 Surf redfish (SRF) Actinopyga mauritiana 6 Peanutfish (PF) Stichopus horrens 7 Stonefish (StoneF) Actinopyga lecanora 8 Blackfish (BF) Actinopyga miliaris and Actinopyga spp. 9 Deepwater redfish (DRF) Actinopyga echinites 10 Leopardfish or tigerfish (TF) Bohadschia argus 11 Curryfish (CF) Stichopus herrmanni and Stichopus vastus 12 Amberfish (AF) Thelenota anax 13 Greenfish (GF) Stichopus chloronotus 14 Elephant trunkfish (ETF) Holothuria fuscopunctata 15 Brown sandfish (BSF) Bohadschia vitiensis and Bohadschia bivittata and Bohadschia koellikeri Minimum piece per kg rates required for all premium species groups above Species groups recorded by weight alone, with quotas set for standard species 18

Appendix 4: Sea Cucumber Buying Form Sea Cucumber Buying Form Marine Resources Management Division, Department of Resources & Development, PO Box 251, Colonia Yap FSM 96943 Date: / / Sheet number: / Name of processing company: Recorder: Fisher: Municipality / Outer Island Group: Marketable species group Wet weight (lb and ounces) Dry weight (not obligatory) Comments Premium species groups: Black teatfish (BTF), white teatfish (WTF), prickly redfish (PRF), sandfish (SandF), golden sandfish (GSandF), surf redfish (SRF), stonefish (StoneF), blackfish (BF), deepwater redfish (DRF), leopardfish or tigerfish (TF), curryfish (CF), amberfish (AF), greenfish (GF), elephant trunkfish (ETF), brown sandfish (BSF). Standard species groups: Lollyfish (LF), pinkfish (PF), snakefish (SnakeF), flowerfish (FF), chalkfish (CF), peanutfish (PF). 19

Appendix 5: Sea Cucumber Export Form Sea Cucumber Export Form Marine Resources Management Division, Department of Resources & Development, PO Box 251, Colonia Yap FSM 96943 Date: / / Sheet number: / Name of processing company: Recorder: Premium species groups Marketable No. of Total dry weight species group 10 kg packages Standard species groups Marketable No. of species group bags Total dry weight Marketable species group codes Premium species groups: Black teatfish (BTF), white teatfish (WTF), prickly redfish (PRF), sandfish (SandF), golden sandfish (GSandF), surf redfish (SRF), stonefish (StoneF), blackfish (BF), deepwater redfish (DRF), leopardfish or tigerfish (TF), curryfish (CF), amberfish (AF), greenfish (GF), elephant trunkfish (ETF), brown sandfish (BSF). Standard species groups: Lollyfish (LF), pinkfish (PF), snakefish (SnakeF), flowerfish (FF), chalkfish (CF), peanutfish (PF). 20

Appendix 6: Suggested maximum piece rate for export of premium species groups of dry sea cucumbers (bêche-de-mer) Species group Wet weight of required product (grams) Recovery rate wet/ live to dry (%) Dry weight of bêche-de-mer (grams) Per kg Pieces per kg Maximum pieces per 10 kg Maximum pieces per 22.05 lb Black teatfish (BTF) 2400 7.0 168.0 6.0 6 60 60 White teatfish (WTF) 2500 8.0 200.0 5.0 5 50 50 Prickly redfish (PRF) 3500 5.0 175.0 5.7 6 60 60 Sandfish (SandF) 750 5.0 37.5 26.7 28 280 280 Golden sandfish (GSandF) 1400 5.0 70.0 14.3 15 150 150 Surf redfish (SRF) 850 5.5 46.75 21.4 22 220 220 Stonefish (StoneF) 650 5.5 35.75 28.0 30 300 300 Blackfish (BF) 500 5.5 27.5 36.4 37 370 370 Large blackfish (BF) (A. palauensis) 1500 5.5 82.5 12.1 12 120 120 Deepwater redfish (DRF) 400 5.5 22.0 45.5 45 450 450 Leopardfish or tigerfish (TF) 1000 4.0 40.0 25.0 27 270 270 Curryfish (CF) 2100 4.0 84.0 11.9 14 140 140 Amberfish (AF) 3500 5.5 192.5 5.2 5 50 50 Greenfish (GF) 300 3.0 9.0 111.1 115 1150 1150 Elephant trunkfish (ETF) 2000 10.0 200.0 5.0 5 50 50 Brown sandfish (BSF) 1000 4.0 40.0 25.0 26 260 260 21

Appendix 7: Suggested dry weight quotas for standard sea cucumber species groups per season Standard marketable species group Scientific name(s) Quota (dry weight, kg) Lollyfish (LF) Holothuria atra 1000 Pinkfish (PF) Holothuria edulis (included under lollyfish) Snakefish (SnakeF) Holothuria coluber and Holothuria (Semperothuria) non flavomaculata 200 Flowerfish (FF) Pearsonothuria graeffei 0 Chalkfish (CF) Bohadschia similis 0 Peanutfish (PF) Stichopus horrens 0 22

Appendix 8: List of people consulted Name Designation Organisation 1 Hon. Sebastian L. Anefal Governor State Government 2 Hon. Anthony M. Tareg Lieutenant Governor State Government 3 Michael Gaan Director Department of Resources and Development 4 Victor Nabeyan Attorney General AG Office 5 Ted Rutun Senator Legislature 6 John Mooteb Vice Speaker Legislature 7 Petrus Beyan Council of Pilung 8 John Runman Staff YSHPO/Gagil Community 9 Lawrence T. Pong Community representative Tamil Dechmur 10 Michael Phulun Gagil Amun 11 Man Sung Choi Keng Weloy 12 Kathy A. Peckalibe Patson s Market 13 Patrick Peckalibe Patson s Market 14 Joseph Pagal AG Office 15 Romanis Yangerliut Staff Council of Tamil 16 Peter Haleyalgiy Woleai Fisheries 17 Manuel Tailimai Community representative Outer Island Organisation 18 Bob Yangerluo Community representative Dabach, Tamil 19 Paul Machieng Sanitation, DHS 20 John Tipmai Staff MRMD 21 Hugh Safwetul Community representative Gargey 22 Xavier Jibmai P&H Coordinator Yap EPA 23 Slyne W. Suwei Administrative Assistant R&D 24 Peter J. Tairuwepiy HPO 25 Vincent Hachiglou Teacher Elato Headstart 26 Steve Memai Chief COT 27 Jarence Beron Community representative 28 Cecilia Lerakilug Community representative 29 Iolani Lauweirig Student 30 Dominic Yarofmwaali Community representative 31 Mark Tachemai Community representative 23