From this stock status information and existing management measures, we are able to suggest improvements in current PICT management systems to ensure that there is sustainable management or rehabilitation of sandfish resources.
Where sandfish is not important in the local diet, subsistence and domestic commercial pressures don’t exist, simplifying the issue of management for legis- lators. However, the trend of resource depletion being experienced at sites surveyed in this study shows that both subsistence and domestic commercial sales are depleting sandfish resources across the Pacific region. Existing national and local management regimes are not reversing the trend of declining spatial availabil- ity, abundance and size in the sea cucumber fishery. For most island countries, the existing national and local (province or state) sea cucumber management regimes are not well aligned to ensure maximum
Figure 2. Density of sandfish (individuals/ha) in three sites assessed in Fiji between
2003 and 2009 Density (individuals/ha) 700 500 400 300 200 100 0
Muaivuso Lakeba Dromuna
600 2003
protection of resources, the socioeconomic needs of the population and the customary practices of manag- ing resources. We believe that having comprehensive enforceable fishery management plans, and accom- panying regulatory frameworks, for each country can provide managers and community leaders with a good basis for management.
The 12-year moratorium on harvest of H. scabra in Palau has been successful in controlling commercial export of the species; however, the policy is not work- ing effectively to improve the status of the resource, as larger sandfish with greater reproductive capacity are being removed by the domestic commercial fish- ery. Continuous depletion of the population through fishing could result in stocks of predominantly young animals (i.e. less breeding capacity), possibly leading to poor or erratic recruitment. Domestic commercial sale is proving to be the major contributor to the depletion of H. scabra in Palau, and development of regulations and policies are a matter of priority to control the fishery.
In Fiji, where sandfish is a local delicacy, both sub- sistence and domestic commercial activity exist. In a similar situation to Palau, Fiji has banned commercial export of sandfish (Fiji Fisheries Act 1991), while subsistence and domestic commercial sales remain unregulated. Domestic commercial selling is classed under subsistence activity and thus is exempted from fisheries regulations. MPAs established by com- munities do not usually include H. scabra habitat (i.e. shallow, soft-bottom substratum) or, if they do, community enforcement of the MPAs is not work- ing effectively in the sites assessed by this study. It is recommended that the national and provincial fisheries authorities take action to regulate domestic commercial exploitation of H. scabra, which is cur- rently contributing significantly to the pressure on the resource.
In New Caledonia, national and provincial control on the sea cucumber fishery is working relatively well, with control systems partially protecting resources and controlling fishing pressure. Sandfish continue to be fished commercially for export, and it is the third-most important species fished in terms of quantity (Purcell et al. 2009). Putting limits on export licences is an effective tool to control exploitation and encourage responsible fishing. Moreover, this does not stop communities from setting aside parts of their lagoon area as MPAs. Therefore, as shown in this study, having an effective national control of the fishery provides a healthy environment for MPAs to
operate. Where an MPA is not effective in improving recruitment, stricter harvesting conditions on size and quality may be needed in addition to a national closed season.
In Vanuatu, a moratorium was enforced in 2008 as a result of concerns about unsustainable harvesting. Community-based management was the principle form of control used by rural communities, while the Fisheries Department controlled the exit point of export. Customary management of tabu areas, as used in the Maskelyne Islands, was previously effective in managing the H. scabra resource. However, the lack of a national sea cucumber fishery management policy, monitoring protocol and associ- ated regulations are existing weaknesses that make it difficult for authorities to control the industry. In one particular case, a community was lured by a foreign ‘trader’ into giving up their resource in exchange for a promise to reseed their reefs with juvenile cultured H. scabra (imported seed stock). This venture cost the community most of their wild stock, and did not result in the successful grow-out of seeded juvenile sandfish. Customary marine tenure is an effective management tool, but there are limitations to the scope of social law in the context of controlling fishing of sea cucumbers. In the case of social law, as experienced in the Maskelynes, the commercial nature of the fishery is changing rapidly, and is therefore relatively difficult to control. Lack of knowledge of the fishery, and introductions of new aquaculture opportunities with no proven track record, combined with weak national and provincial fishery control systems, were some of the factors contributing to management failure. A national fishery policy and additional regulations are needed to strengthen control and limit exposure of communi- ties and their management systems to these external market pressures.
In Tonga, where sea cucumbers are a local deli- cacy, several species are exploited for subsistence and domestic sale. Among the locally exploited species is golden sandfish, a high-value species of great importance to Tonga. The species was also important in the commercial export trade in the 1990s, with Tongatapu yielding most of Tonga’s golden sandfish production (according to anecdotal reports from export agents) prior to the 1997 moratorium. While the moratorium on golden sandfish was extended in recent harvest seasons, lack of control on domestic sale activities continue to impede the recovery of its stocks in Tonga.