Regulatory Vacuum on Illegal FAD Puts Maluku at Risk

_{by Karel Yerusa & Putra Satria Timur}

The tuna industry in Maluku holds great potential that benefits not only for local development, but also helps Indonesia securing strategic position in the global fishery supply chain. The province is well known with its rich tuna production, drawing attention from large certification bodies like Fair Trade USA and Marine Stewardship Council (MSC).

Such certifications promise added economic value, broader market access, and global recognition. However, behind the opportunity lies a rigorous set of prerequisites: fisheries management must be transparent, accountable, and rooted in environmental sustainability.

This is precisely where the fundamental problems of the Maluku’s fishery scene emerge.

Going Blind Eye Against Illegal Fish Aggregating Devices

One of the greatest hurdles in managing Maluku’s tuna fisheries is the rampant use of illegal Fish Aggregating Devices (FADs). These man-made structures are anchored at sea to attract schools of fish, but in practice, many are deployed without permits or clear oversight.

This lack of regulation places these illegal rumponsquarely within the realm of Illegal, Unreported, and Unregulated (IUU) fishing. The issue is more than just administrative. Currently, every FAD anchored in Maluku’s waters is technically illegal due to legal vacuum. Most FADs don’t have the legal permit to function, let alone be placed on the coordinate.

The problem has left Maluku vulnerable. Their reputation bestowed by multiple certification bodies is at risk. All because of policy vacuum at the local level, as fish caught with illegal devices cannot meet international certification standards.

Inequality and Conflict at Sea

The impact of illegal FAD extends beyond certification hurdles.

On the water, these devices spark frequent clashes between small-scale fishers and larger commercial vessels. Local artisanal fishers often find themselves blocked from accessing these hotspots, losing out in the competition for resources.

In many instances, this economic pressure has forced small-scale fishers to abandon the sea entirely, seeking work as construction laborers, miners, or farmers.

This situation highlights a structural imbalance in fisheries management: a tool intended to increase efficiency has instead widened the gap between industrial players and small-scale fishers.

Sustainability at Risk

Social conflict is accompanied by ecological degradation. Data from I-Fish between 2017 and 2024, collected from Maluku’s small-scale fishing hubs, reveals a grim statistic: roughly 80% of the catch at these rumpon consists of juvenile fish, including skipjack, yellowfin, and bigeye tuna. The harvesting of young fish is a serious red flag for the long-term sustainability of tuna stocks.

In December 2023, during an FCMC meeting, small-scale fishers stated bluntly that illegal FADs are the primary drivers of both conflict and overexploitation. Netting vessels operating around these devices haul in massive quantities of juvenile fish daily. Consequently, local fishers have urged the provincial government to regulate the increasingly crowded waters.

Aiming for Governor’s Decree

The provincial government began to respond on April 29, 2024, when the Maluku Marine and Fisheries Department initiated meetings with NGOs, academics, and other stakeholders to form a study team for FAD allocation. Organizations including the MDPI Foundation, AP2HI, MSC, and USAID Ber-IKAN stepped in to provide funding for the research.

An academic study conducted by Pattimura University in Ambon was submitted to the DKP in December 2024. This document served as the foundation for a draft Governor’s Regulation on the allocation and placement of these devices.

By June 25, 2025, following consultations with the Ministry of Law and Human Rights and the Ministry of Home Affairs to ensure alignment with national policy, the Governor of Maluku enacted Regulation No. 20 of 2025 on the Placement and Allocation of Fish Aggregating Devices.

Beyond Technicalities

The new regulation does more than just map out coordinates and quotas; it marks a milestone in reorganizing Maluku’s tuna management into a fairer, more sustainable system. With clear rules, officials hope to mitigate conflicts, empower small-scale fishers, and curb destructive fishing practices.

Furthermore, this legal certainty paves the way for Maluku to strengthen its investment in certified fisheries like Fair Trade and MSC—not as an end goal, but as a mechanism to ensure the longevity of resources and the welfare of fishers.

Conclusion

For years, the immense potential of Maluku’s tuna has been trapped in a cycle of illegal gear, social friction, and regulatory absence. Governor’s Regulation No. 20 of 2025 is a vital step toward breaking that deadlock.

The next challenge lies in consistent implementation and enforcement that favors the small-scale fisher. Without it, the regulation risks becoming a mere administrative paper exercise rather than a tool for true transformation. Ultimately, the sustainability of Maluku’s tuna will be determined not by the complexity of the rules, but by how much they change the reality on the water.