Regional Action Plan for the Conservation of Marine Turtles and their Habitats in the Sulu-Sulawesi Seascape

Transcription

1 Regional Action Plan for the Conservation of Marine Turtles and their Habitats in the Sulu-Sulawesi Seascape Dr. Nicolas J. Pilcher September 2007

2 This report may be reproduced or quoted in other publications provided that proper referencing is made to the source. This report is available as a downloadable document at This report was prepared through a grant given to the Marine Research Foundation as part of Conservation International Philippines work in the Sulu-Sulawesi Seascape, with support from the Walton Family Foundation. Opinions expressed in this report are those of the writer and do not necessarily reflect those of Conservation International Philippines or of Walton Family Foundation. Suggested Citation: Pilcher, N.J Regional Action Plan for the Conservation of Marine Turtles and their Habitats in the Sulu-Sulawesi Seascape. Conservation International Philippines. Retrieved on [date] from URL]

3 Table of Contents Contents i. LIST OF ACRONYMS AND ABBREVIATIONS ii. SCOPE OF THE PLAN iii. USING THIS ACTION PLAN 1.0 INTRODUCTION 1.1 Background 1.2 Geographical Setting 1.3 The Importance of Marine Turtles 1.4 Critical Life-History Adaptations and their links with Conservation 2.0 REDUCING DIRECT AND INDIRECT CAUSES OF MARINE TURTLE MORTALITY Action 1: Identify and document the threats to marine turtle populations Action 2: Minimise threats to marine turtle populations Action 3: Implement programmes which provide alternatives to communities dependant in some manner on marine turtle populations Action 4: Regulate the direct capture or killing of, and domestic trade in, marine turtles, their eggs, parts or products Action 5: Develop nesting beach management programmes to maximize hatchling recruitment Action 6: Promote marine turtle rescue and rehabilitation activities Expected Results Outcomes and Time Frame Performance Indicators and Quality Assurance 3.0 PROTECTING AND CONSERVING MARINE TURTLE HABITATS Action 1: Establish necessary measures to protect and conserve marine turtle habitats Action 2: Rehabilitate degraded marine turtle habitats Expected Results Outcomes and Time Frame Performance Indicators and Quality Assurance 4.0 RESEARCH AND MONITORING Action 1: Conduct and Expand Studies on Marine Turtles and their Habitats Action 2: Strengthen Collaborative Research and Monitoring Action 3: Exchange Information Expected Results Outcomes and Time Frame Performance Indicators and Quality Assurance 5.0 COMMUNITY PARTICIPATION, PUBLIC AWARENESS, INFORMATION AND EDUCATION Action 1: Expand and implement public education, awareness and information programmes Action 2: Promote General Public Participation Action 3: Expand Government Involvement and Promote Shared Responsibilities Page iii iv v Dr. Nicolas J. Pilcher, September 2007 i

4 Table of Contents Contents Action 4: Integrate Community Development with Environmental Education Action 5: Continually Evaluate Community Practices as they Impact Marine Turtles and their Habitats Expected Results Outcomes and Time Frame Performance Indicators and Quality Assurance 6.0 BUILDING CAPACITY FOR CONSERVATION, RESEARCH AND MANAGEMENT Action 1: Training and Capacity-Building Action 2: Provision of Resources to support Training, Research and Monitoring Expected Results Outcomes and Time Frame Performance Indicators and Quality Assurance 7.0 INTEGRATED MANAGEMENT FOR MARINE TURTLES Action 1: Cooperation and Promotion of Information Exchange Action 2: Enforcement and Legislation Action 3: Use of data in Management Action 4: Implementation of International Legal Instruments Expected Results Outcomes and Time Frame Performance Indicators and Quality Assurance 8.0 FUNDING FOR MARINE TURTLE CONSERVATION Action 1: Securing Funding for Marine Turtle Conservation Expected Results Outcomes and Time Frame Performance Indicators and Quality Assurance 9.0 ACKNOWLEDGEMENTS 10.0 LITERATURE CITED Adnyana, I.B.W., Preliminary assessment of Berau green turtle population. Report to WWF Indonesia, turtle program (21pp) ADDITIONAL SUGGESTED READING 12.0 APPENDICES Appendix I: Outcomes of the Kota Kinabalu workshop deliberations - September 2006 A1.1 Priorities defined for the National Level A2. What is already known Appendix II: IOSEA MoU Conservation and Management Plan Appendix III: IOSEA Memorandum of Understanding Appendix IV: Generalised life cycle of marine turtles Appendix V: Potential and Existing Threats to Marine Turtles Appendix VI: Satellite tracking imagery in support of the focus on Marine Turtles in the Tri-National Seascape Page ii Regional Action Plan for the Conservation of Marine Turtles and their Habitats in the Sulu-Sulawesi Seascape

5 i. LIST OF ACRONYMS AND ABBREVIATIONS ASEAN BDMCA CBD CI CITES CMI CMS DENR FAO GEF GIS IOSEA MoU Association of South East Asian Nations Berau District Marine Conservation Area Convention on Biological Diversity Conservation International Convention on International Trade in Endangered Species of Wild Fauna and Flora Coastal, Marine and Island Convention on Migratory Species Department of Environment and Natural Resources Food and Agriculture Organization of the United Nations Global Environment Facility Geographical Information System Memorandum of Understanding on the Conservation and Management of Marine Turtles and their Habitats in the Indian Ocean and Southeast Asia IUCN MARPOL MTSG NOAA NRC SSC SSS TED UNCLOS UNDP UNEP WWF The World Conservation Union International Convention for the Prevention of Pollution from Ships Marine Turtle Specialist Group National Oceanic and Atmospheric Administration National Research Council Species Survival Commission Sulu Sulawesi Seascape Turtle Excluder Device United Nations Convention on the Law of the Sea United Nations Development Programme United Nations Environment Programme World-Wide Fund for Nature Dr. Nicolas J. Pilcher, September 2007 iii

6 ii. SCOPE OF THE PLAN This plan acknowledges that, despite a significant amount of work at particular sites, there still exist a number of gaps in the knowledge of the status of marine turtles and their habitats and in conservation action in the Sulu-Sulawesi Seascape (SSS). The plan draws on previous grey and scientific literature on the subject, discussions held during the Tri-national Trainers Training Course to enhance the capacity of stakeholders from the Philippines, Malaysia, and Indonesia in sea turtle biology, ecology, conservation and management held in Kota Kinabalu, Sabah, in September 2006, and a selection of recently-completed country projects as the basis for determining conservation needs and actions which will result in the sustainable management of marine turtles in the seascape shared by the three countries. and marine habitats, although it is acknowledged that in several cases marine turtles are not addressed directly in the mandates of certain institutions, and responsibilities for conservation actions outlined in the Plan may be shared among the relevant governing bodies. The Actions contained herein concern specific tri-national needs and conservation actions, but is not intended to restrict any Agency in any country from expanding on these actions depending on individual needs and concerns. A broader list of actions can be found in the IOSEA MoU Conservation and Management Plan in Appendix I. The Sulu-Sulawesi Marine Ecoregional Conservation Plan was ratified by Indonesia, Malaysia, and the Philippines in Within the vision of this greater plan, the Sulu Sulawesi Seascape Programme has as one of its core activities the development of action plans for key species and ecosystems, and from which this Regional Action Plan for the Conservation of Marine Turtles and their Habitats derives. The Regional Action Plan draws its structure and recommended courses of action from both the Global Strategy for the Conservation of Marine Turtles, published by the Marine Turtle Specialist Group of the IUCN (World Conservation Union) Species Survival Commission, and the Conservation and Management Plan which was developed as part of the Memorandum of Understanding on the Conservation and Management of Marine Turtles and their Habitats of the Indian Ocean and South-East Asia, an agreement reached under the auspices of the Convention on Migratory Species which covers the Indian ocean and its associated bodies of water, including the Sulu-Sulawesi region. The structure of the Plan reflects the combination of the two instruments, and where possible, and to avoid duplication, attempts to maintain similar language for consistency. The Regional Action Plan (RAP) is designed to be implemented by the respective Agencies in each of the three counties with the mandate to conserve marine turtles iv Regional Action Plan for the Conservation of Marine Turtles and their Habitats in the Sulu-Sulawesi Seascape

7 iii. USING THIS ACTION PLAN The conservation of marine turtles and their habitats can be rationalized through prioritization of activities, projects and programmes grouped into eight major categories, each of which are individually examined below. The Actions listed under each of the eight major categories are not exclusive, and often overlap with Actions of different components. The main components are: Reducing direct and indirect causes of marine turtle mortality, Protecting, conserving and rehabilitating marine turtle habitats, Research and monitoring, Public awareness, information and education, Community participation in conservation, Building capacity for conservation, research and management, Integrated management for marine turtles, and Realising funding for marine turtle conservation included the available knowledge on the effectiveness and response times for varying past conservation actions, the potential impacts of prescribed actions on marine turtle populations, the status of marine turtle nesting and foraging populations in the Sulu Sulawesi Seascape and beyond, and the expected levels of technical input and investment of resources for the conservation of marine turtles and their habitats by the various government, research and conservation agencies. This plan adheres to the format of the Conservation and Management Plan of the IOSEA MoU, the Global Strategy for the Conservation of Marine Turtles, and the ASEAN MoU for Marine Turtles, whereby key issues and actions are outlined under each component of the RAP. Time frames under expected results and outcomes indicate the number of months required to achieve the result or outcome, starting from the formal adoption of the Regional Action Plan for Marine Turtles and their Habitats. The level of urgency for each action is indicated as: *** - very urgent action, where immediate action or intervention is required, as for example to protect habitats and ecosystems under severe threat; ** - urgent action, where intervention is required to ensure the continued viability of species, communities or ecosystems of regional or global importance; * - priority action, where there is an institutional set-up or there are on-going projects and opportunities for co-operation with existing efforts. The priority designation for each of the expected results and outcomes was devised using a number of criteria, which Dr. Nicolas J. Pilcher, September 2007 v

8 1. INTRODUCTION 1.1 Background The Sulu-Sulawesi Seascape (SSS) project undertaken under the patronage of Conservation International Philippines is an action-oriented component of the greater Sulu- Sulawesi Marine Ecoregion (SSME) programme ratified by Indonesia, Malaysia and the Philippines in 2004, which was developed under the patronage of WWF. Within this, the development of a Regional Action Plan for Marine Turtles falls within the scope of the greater three-year marine conservation initiative of the Sulu-Sulawesi Seascape (SSS) project and the Sulu Sulawesi Conservation Plan (WWF 2003) which involves a broad range of partners building a strong long-term conservation foundation to address varied and immediate threats to the biological diversity of the Sulu and Sulawesi Seas. The Regional Action Plan is envisioned to provide a structure for the long-term conservation of turtles far into the future, beyond the several year timeframes of current initiatives. It is a logical progression of (1) the numerous national projects operating in the Seascape, (2) the development and implementation of ex- and in-situ training and oversight to develop capacity to design and implement marine turtle surveys, and (3) subsequent monitoring and conservation of marine turtles within the scope of the SSS Project, in collaboration with the Conservation International (Philippines), the Department of Natural Resources in the Philippines, Conservation International (Indonesia), Sabah Parks, Sabah Department of Fisheries, WWF Malaysia, the Marine Research Foundation, and numerous other key stakeholders. an operational information system; and increased public awareness of the needs and benefits of coastal and marine biodiversity. The SSS is home to a formidable array of marine wildlife, with marine turtles constituting an important resource for people along the coastal belt. As a key component of the SSS Project, marine turtles inhabiting the Sulu and Sulawesi Seas are the focus of intensive studies and critical conservation initiatives including public awareness, international linkages, and the protection of key nesting and foraging habitats. The overarching objective of the SSS project is to ensure the conservation and sustainable use of the globally significant biodiversity of the coastal, marine and island ecosystems shared by Malaysia, Indonesia and the Philippines. These are currently threatened by the rapid development of fisheries, tourism, and other activities including oil exploration. The SSS Project aims to facilitate sustainable development of coastal and marine resources through a participatory management framework; establishment of conservation areas and species protection programmes; A migration track by a post nesting green turtle from the Berau islands ending off Banggi Island, at the northern tip of Malaysia, and close to the Philippine border, highlighting the importance of the Sulu Sulawesi Seascape not only as nesting or foraging habitat, but also as a key migration corridor for the endangered marine turtles. (Graphic courtesy of the WWF Indonesia Marine Turtle Programme. Imagery courtesy of www. seaturtle.org s STAT). Regional Action Plan for the Conservation of Marine Turtles and their Habitats in the Sulu-Sulawesi Seascape

9 Marine turtle populations in Asia have been depleted through long-term harvests of eggs and adults, and as by-catch in the ever-expanding trawl fisheries. All species of marine turtles except the Kemp s Ridley (Lepidochelys kempii) occur within the SSS waters, and of these, the Green (Chelonia mydas), Hawksbill (Eretmochelys imbricata), Olive Ridley (Lepidochelys olivacea) and Leatherback (Dermochelys coriacea) turtles all nest in the region. The Flatback turtle (Natator depressus) is confined to waters of the Australian continental shelf, but feeding turtles have been recorded in the Indo-Pacific area (Limpus et al. 2001) and the Loggerhead turtle (Caretta caretta), while present in the SSS region, has never been recorded nesting. in Endangered Species of Wild Flora and Fauna (CITES) lists all marine turtles on Appendix I (prohibited from international trade). The type specimen for the Olive Ridley turtle comes from Manila Bay, and they nest in Puerto Princesa, on Palawan Island in the Philippines. Leatherback turtles nest on the northern coast of Sulawesi. Greens and Hawksbill turtles nest in great numbers both at the Turtle Islands Heritage Protected Area (Malaysia and the Philippines) and in the Berau District Marine Conservation Area (Indonesia). Loggerhead turtles have yet to be recorded to nest in the SSS, but tag recoveries exist from turtles as far away as Japan. Recent satellite tracking records highlight the Sulu Sulawesi Seascape as an important leatherback turtle feeding area, and tag returns and satellite tracking data from long-running research and monitoring projects in the region point to the SSS being an important foraging ground and migration pathway for all species of sea turtles. Green turtles alone come from as far as Terengganu in Peninsular Malaysia, Con Dao National Park in Vietnam, Wan-An Island and Taipin Dao in Taiwan, and even Gielop Island in Yap, Federated States of Micronesia (see Appendix VI for graphic evidence of migration tracks). The World Conservation Union (IUCN) lists the Green turtle as Endangered, the Leatherback and Hawksbill turtles as Critically Endangered, the Olive Ridley and Loggerhead turtles as Vulnerable and the Flatback turtle as Data Deficient (insufficient data to determine it s status to IUCN standards). The Convention on International Trade A migration track by a post nesting green turtle from Con Dao National Park in Vietnam, demonstrating a determined and purposeful journey across the South China Sea to end up foraging for over five months off the northern tip of Palawan, Philippines. Data from this turtle and several others from Vietnam and Taiwan have only recently highlighted the importance of this site as a key foraging ground. (Graphic courtesy of the WWF Greater Mekong Vietnam Project and the Marine Research Foundation. Imagery courtesy of s STAT). Nesting turtle populations have been well documented in Southeast Asia (for reviews see Bjorndal 1985, Basintal & Lakim 1993, Chan 1990, Charuchinda et. Al. 2002, Cheng 2002, Leh 1993, Nacu et al. 1993, Pham Thuoc 2002, Pilcher & Ismail 2000, Shanker & Pilcher 2003, Trono 1991, amongst many others, and references therein), Dr. Nicolas J. Pilcher, September

10 and this document does not attempt to reproduce every effort published to date, nor reflect a literature review of turtles in the region. The above publications provide a suitable starting point for those in need of delving further into what is known about marine turtles in the SSS. However, it is important to note that virtually all publications relate to nesting beaches and adult female turtles and egg and hatchlings, with little or no known information on foraging populations in the SSS region. Frustratingly for biologists and managers attempting to determine how turtle populations will be influenced by various natural and anthropogenic stresses, there is practically no information on the missing years between hatchling and returning adults, on gender ratios in the wild, the dynamics of turtle populations with regard to growth, survival, gender ratios, and no way to determine what proportion new entrants to the breeding population represent. These data are considered crucial and among the top priorities for researchers at present time, given the understanding they would provide on the status of turtles at those life stages least studied by modern science. 1.2 Geographical Setting This Regional Action Plan addresses the conservation of marine turtles and their habitats in the SSS, and builds on National conservation plans and initiatives in each of the three countries, Philippines, Indonesia and Malaysia. This region sits within the global triangle of marine biodiversity, which encompasses various distinctly different marine and coastal habitats, containing complex and unique tropical marine ecosystems with high biological diversity and many endemic species. The coastal habitats are surrounded by some of the most diverse terrestrial habitats on the planet, with high rainfall and large, ever-growing human populations. While parts of the SSS are still in a pristine state, environmental threats (notably from habitat destruction, over-exploitation and pollution) have the potential to increase rapidly, requiring ongoing action to protect the region s remaining pristine coastal and marine environment, and restore degraded habitats. The Sulu-Sulawesi Marine Ecoregion occupies approximately 900,000 km² area that includes the Sulu and Sulawesi Seas, located between Indonesia, Malaysia and the Philippines (De Vantier et al. 2004). This seascape is one of the world s most diverse and productive marine ecosystems which supports a considerable number of marine species such as sea turtles, marine mammals, elasmobranchs, marine fishes, invertebrates, seaweeds and seagrasses, as well as other less well-known but equally important marine flora and fauna (Fig. 1). It is home to globally important coral reefs, mangroves, seagrasses and other habitats, as well as numerous vulnerable or globally endangered species including marine turtles, dugong, seabirds, dolphins and whales. About 35 million people lived in association with the Seascape, and the annual population growth rate is between 2 and 5%. Major economic activities include agriculture, fishing, aquaculture, tourism and mining. Together with a booming population, these economic activities increased the threats and pressure on the Seascape s marine ecosystem. In Indonesia, the key turtle population is found in the Berau district, where Green turtles nest by the thousands. There is also leatherback nesting at the northern tip of Sulawesi, at Tangkoko-Batuangus, a major Indonesian nature reserve (Tomascik et al. 1977). The Berau District Marine Conservation Area (BDMCA), also known as the Derawan Islands Complex (Adnyana et al. 2007) is located within the Province of East Kalimantan. The BDMCA encompasses a total of ~1.2 million ha of coastal area, which stretches from the island of Panjang in the north to Mangkaliat Peninsula in the south. The area encloses 31 small islands, nine of them are critical nesting beaches for Green turtles. The main nesting concentrations are on Sangalaki, Blambang an, Bilang-Bilangan, and Mataha. Smaller nesting aggregations are found at Derawan, Samama, Maratua, Sambit, and Balikukup. Very significant exploitation of green turtle eggs has taken place since the 1900 s where turtle eggs were used as royal gifts, but which later developed into large-scale, unregulated collection of eggs for commercial purposes. Based on Regional Action Plan for the Conservation of Marine Turtles and their Habitats in the Sulu-Sulawesi Seascape

11 records from the local office of Marine Affairs and Fisheries, some two to two and a half million Green turtle eggs were collected at just about every island each year from 1985 to 2000 (Adnyana, 2003). monitoring and surveillance activities at Sangalaki and Derawan, and at the feeding ground near Panjang island (Adnyana et al. 2007). In the Berau District Marine Conservation Area, an important feeding and nesting ground for turtles migrating from different countries such as Malaysia, Philippines and Japan, conservation efforts have been underway for over a decade by various groups and on several islands. Green turtles nest there in great numbers, up to thirty each night, and while a long-term egg harvest programme had been collecting nearly all of the eggs laid, dive resort operators brokered egg license purchases andinstituted hatchery and nest adoption programmes. In 2001 the local district government revoked the concessions to collect eggs through Berau Bupati Decree No. 44/2001, effectively increasing the overall protection of turtles in the region. Fig. 1: The Sulu-Sulawesi Seascape. Lindsay & Watson (1995) estimated that the number of females nesting at Sangalaki in the 1950s and 1970s was between 150 and 200 turtles per night. In 1993, a local census done on Sangalaki reported a nesting volume of some 39 turtles per night (GF Taylor, in Tomascik et al. 1997), suggesting a significant decline, which continues to this day (Adnayana et al. 2007). The official government protection of Sangalaki, Derawan and Samama in early 2002 has since enabled a joint team of NGOs, local government officers and community group to conduct In Sabah, Malaysia, marine turtles have long been identified with conservation needs, and are protected by law. Indeed, the collection of eggs and adults is prohibited, and key nesting sites are protected through Sabah Parks, the agency vested with the authority over the management of marine and terrestrial parks in the State. Nesting in Sabah takes place primarily at the Turtle Islands Park (TIP), lying 40 km north of Sandakan which encompasses three small islands, and at Sipadan, an island off the southeastern tip of the State. At Sipadan, most nesting is by Green turtles and the Hawksbill turtle is an uncommon nester (< 50 nests/year). Between 1967 and 1978 nesting at the Turtle Islands Park averaged 547 females (de Silva, 1982), and from 1983 to 1997 rose to an average of > 400 hawksbill turtle nests/yr and >3000 green turtle nests/ yr (Sabah Parks, unpub. data). This represents a significant increase in nesting females since the Park s establishment, and is probably due to the protection by Park rangers. While the more accurate data recording in the last decade suggests a greater volume of nesting in recent years, the numbers indicate this is the largest rookery in Southeast Asia. Dr. Nicolas J. Pilcher, September 2007

12 At the Turtle Islands Park, management efforts have been underway for over 30 years (see Chan, 2000; UPM et al. 1996), and populations have been steadily increasing or remained stable. At the Park, nearly all eggs are moved to hatcheries which produce 100% females due to warm development temperatures (Tiwol and Cabanban, 2000) resulting in unnaturally skewed population sex ratios. Presently the Park shades portions of the hatchery, but it is unknown what impact the decades of skewed sex ratios in emerging hatchlings will have varying age classes on wild populations, indeed emerging data points to significant gender bias in the wild, juvenile foraging populations. The six-island Philippine Turtle Islands group is located in the Sulu Sea, at the southwestern tip of the Philippines, about 1,000km southwest of Manila and some 40km north of Sandakan, Sabah, Malaysia and was proclaimed a Wildlife Sanctuary under Proclamation No. 171 in The turtle Islands are part of the Sulu Archipelago which is composed of approximately 400 islands. The municipality of Islands (Boan, Lihiman, Langaan, Great Bakkungan, Taganak, and Baguan) lies along the international treaty limits separating the Philippines and Malaysia, south of Palawan, and northwest of the Tawi-Tawi mainland. The islands have an aggregate land area of 308 hectares, with the smallest (Langaan) measuring ~7 ha and the largest (Taganak) measuring ~116 ha. The enormity of threats in the region have prompted various strategic management approaches in the Philippines, one of which was a collaborative initiative that resulted in The Philippine Biodiversity Conservation Priorities: A Second Iteration of the National Biodiversity Strategy and Action Plan. This publication identified priority conservation corridors in the Philippines, including nine marine biodiversity conservation corridors (MBCCs), eight of which are in Sulu and Sulawesi Seas. These corridors facilitate the dispersal of larvae and serve as migration routes for pelagic species. In a historic bilateral agreement in 1996, the Governments of the Philippines and Malaysia established the Turtle Islands Heritage Protected Area (TIHPA), the first and only trans-frontier protected area for marine turtles in the world. The TIHPA agreement covers nine islands (six in the Philippines and three in Malaysia) which lie adjacent to the international treaty limits that separate the two countries. Both countries, making possible the conservation of habitats and sea turtles over a large area independent of their territorial boundaries, share management of the TIHPA. This is an unprecedented initiative by both implementing agencies of the TIHPA - the Pawikan Conservation Project under the Protected Areas and Wildlife Bureau of the Philippines Department of Environment and Natural Resources, and Sabah Parks of Malaysia. This agreement now extends to include the Berau Islands Conservation Area in Indonesia, a move which cements the key nesting aggregations in the region. This Regional Action Plan builds on this initiative and considers foraging turtles and development stage turtles, usually absent in nesting beach protection programmes. At a greater regional level, the ASEAN MoU reaffirms the commitment by each of the countries within the SSS to conserve marine turtles through whatever means are appropriate. The MoU was signed by the Governments of Negara Brunei Darussalam, the Republic of Indonesia, the Lao People s Democratic Republic, Malaysia, the Union of Myanmar, the Republic of the Philippines, the Republic of Singapore, the Kingdom of Thailand, and the Socialist Republic of Vietnam. It recognises the significance of sea turtle populations and their habitats in ASEAN waters, and also that sea turtles are migratory species and that the waters of ASEAN countries form a contiguous area of waters without any interval. Noting this, and realising that effective conservation efforts cannot be independently realized at a national level and that multilateral efforts are necessary to ensure the long-term survival of sea turtles in the ASEAN region, these countries resolved to promote the protection, conservation, replenishing and recovery of sea turtles and of the habitats based on the best available scientific evidence. Building on this agreement, it is expected that this Regional Action Plan will cement the commitments of Indonesia, Malaysia and the Philippines Regional Action Plan for the Conservation of Marine Turtles and their Habitats in the Sulu-Sulawesi Seascape

13 and provide a practical conservation roadmap which takes into account the conservation needs of marine turtles and importantly the environmental, socio-economic and cultural characteristics of its people. 1.3 The Importance of Marine Turtles Marine turtles are some of the oldest surviving reptiles on the planet, and have inhabited the tropical seas and oceans of the planet for millions of years. Recently, mankind s actions, in particular in the 19th and 20th centuries, have brought many populations to the brink of extinction. Turtles appeared in the late Triassic ca. 200 million years ago (Pritchard, 1997), and have survived relatively unchanged since that time through their adaptation to marine environments. There are several key physiological features that are common to all sea turtle species and which set them apart from other Testudines, such as non-retractile limbs, extensively roofed skulls, limbs converted to paddle-like flippers, and salt glands to excrete excess salt. As is the case with other reptiles, the sex of hatchlings is dependent on temperature during incubation, particularly during the middle third of the incubation period (Miller, 1985; Miller & Limpus, 1981). Coastal communities have used sea turtles and their products for thousands of years as a basis for food and a host of other uses. Today, turtles are also key components of non-consumptive uses such as tourism, education and research activities. Turtles are also irreplaceable ecological resources, in that they function as a key individuals in a number of habitats, and can play the role of indicator species for the relative health of their environs. Many habitats that are important for marine turtles have a tangible value to society, in that they also support commercial fish and invertebrates (found in seagrass beds, open oceans and coral reefs, among others) which are valued by mankind. Turtles can act as model flagships for conservation programmes, and because the conservation of turtles and their habitats addresses vast and diverse marine areas, they indirectly protect the complex and interconnected world on which humans depend. All marine turtles share a similar lifestyle (see Appendix IV), which has made them relatively similarly threatened by anthropogenic input. Marine turtles migrate and disperse over vast distances, which makes their survival dependent on their conservation over a wide area and in a wide range of marine and coastal habitats within the Sulu Sulawesi Seascape. 1.4 Critical Life-History Adaptations and their links with Conservation The physiological design and biological adaptations of sea turtles have presumably remained similar for millions of years, yet certain aspects of their life history set them apart from most marine inhabitants, and some aspects of their life history, when combined with modern-era technology and population pressures, may prove detrimental to their longterm survival. 1.4a Habitat Requirements and Degradation Sea turtles need a number of different habitats to complete their natural life cycle (NRC, 1990). From when eggs are deposited on clean sandy beaches, to hatchling migrations through unpolluted waters, shallow foraging sites such as seagrass beds, worm reefs and coral reefs, and deep oceans teeming with life, turtles depend on habitats that circumscribe the tropics and even extend to far northern and southern latitudes. On some beaches there is a small risk of density dependent nesting mortality as the population size grows exponentially (Balazs, 1980), where nests face higher risks of being disinterred by other nesting adults. Lighting on beaches is hazardous to emerging hatchlings as lights attract hatchlings away from the shoreline (Witherington & Bjorndal, 1990), and in many developed coastal areas may be responsible for a large percentage of hatchling loss. In Florida, legislation exists that controls light use close to turtle beaches (Lutcavage et al. 1997), but these regulations do not exist for turtle rookeries in Southeast Asia. Nesting habitats are threatened by the disappearance of beaches through sea Dr. Nicolas J. Pilcher, September 2007

14 level rise and erosion processes (Ackerman, 1997), beach nourishment, armoring and sand mining, and through residential development (Lutcavage et al. 1997). In the open sea, turtles face the risk of fishery mortality (Poiner & Harris, 1994), and a number of other threats, such as oil pollution. Hutchinson & Simmonds (1992) discuss the increased threats to turtles from oil as they migrate across vast expanses of ocean. At foraging sites, turtles are threatened by marine debris (Balazs, 1985), destructive fishing practices such as blast and cyanide fishing (Bjorndal, 1996; Pilcher & Oakley, 1997), anchors and propellers, siltation and the use of bottom trawls in seagrass ecosystems (Bjorndal, 1996). 1.4b Migrations One of the characteristics that has fascinated biologists and conservationists alike through time is the periodic migrations marine turtles make to and from nesting and foraging sites, sometimes over vast distances. Adult females do not necessarily nest at the closest rookery to the feeding area, as noted with green and hawksbill populations along the Great Barrier Reef (Limpus et al. 1983). Turtles make very deliberate two-way journeys to specific geographical targets with green turtle females showing high site fidelity after remigrations, generally of 2-4 years (Limpus et al. 1992). These migrations entail the use of open oceans and seas, across international boundaries (Fig. 2), and over vast distances. Exploitation of fishery stocks on the high seas threaten the migrating turtles (the long-line fishing industries of the Pacific and Indian Ocean which continually land loggerhead and leatherback turtles are prime examples). Aggregations of turtles close to nesting beaches make them susceptible to capture in trawl-fisheries, and the added complexities brought about by international boundaries and definition of high seas rights mean that turtles at sea are turtles at risk. Fig. 2: Known migrations of green turtles in the Indian Ocean region, as an example of the distances traveled and international borders crossed by migrating turtles (courtesy of C. Limpus and numerous data contributors). 1.4c Age at Maturity Marine turtles are estimated to live long lives, perhaps up to 100 years although nobody has ever kept one for that long! They are known to reach sexual maturity only after 15 to 40 years (Miller, 1997), depending on species, presenting unique management requirements. Turtle hatchlings emerging today might only return to nest after 20 to 30 years, by which time few, if any, of our present scientists and managers will be following their progress. Additionally, their long (5-15 year) absence from known feeding or foraging sites masks the detection of changes to population sizes. For this reason, effects on long-term survival such as egg collection or adult harvesting might not be noted for a number of years, if at all (Fig. 3). Additionally, and more importantly, is that their long maturation period means they face an ever-increasing number of mortality pressures during a long period of time, which hinders population restocking. 7 Regional Action Plan for the Conservation of Marine Turtles and their Habitats in the Sulu-Sulawesi Seascape

15 and planned interventions, but grounds the interventions in science and assigns priorities based on turtle biological time-clocks. Fig. 3: In a simple hypothetical case, while eggs are laid and allowed to hatch, turtles are produced. But if 100% of eggs were harvested or if 100 % of turtles were harvested each year before laying eggs, there would reach a point at which no further breeding females would be available. However, this would not become apparent for another 25 years (modified after Mortimer, 1995, with permission). 1.4d The need for a Management Plan and its Scope In addressing the future scope of conservation of marine turtles in the Sulu Sulawesi Seascape, it is worth asking the question What is the main priority?. The commitment has already been made at the highest governmental levels to address the issue of marine turtle conservation through various laws, bilateral and multi-lateral agreements, and research and site-specific conservation activities have been taking place for several years. What is required now is immediate concerted activity to implement a coordinated regional action plan, one which addresses the needs of the turtles and habitats as well as the communities, industries and institutions that depend on or influence them. There have been an increasing number of responses to threats to marine turtles by each of the three countries over the past two decades. Much has been done to protect critical nesting beaches, and agreements have been forged which have resulted in the protection of strategic turtle habitats, both at sea and ashore. This Plan does not intend to replace these valuable efforts, but rather bring them together under one cohesive and visionary conservation approach, which can be independently carried out at the National level with Regional impacts. The Plan provides a structure under which management and conservation initiatives may be identified and then implemented, and their success evaluated, consistent across borders, stakeholders and legislative structures. It builds on existing A regional plan of action to address the status of turtles and habitats in the SSS (and even at a greater regional level),, needs to be based on the best available information and understanding of marine turtle biology, life cycles and turtles needs. For conservation of marine turtles at a regional scale to be effective and for the Regional Action Plan to have a realistic chance of succeeding in future years, there are some fundamental requirements which include (1) having a clear logical pathway that maps the routes from implementation to conservation outcomes (2) setting realistic outputs, measurable deliverables, long-term objectives, (3) have the right people to do the job, (4) be cooperative, inclusive adaptable and sharing, and finally be acceptable to the general public. Management interventions (outcomes) require realistic outputs derived from a variety of targeted actions. When developing and implementing conservation and/or management action, we must first ask several questions what are we trying to achieve and how can we get there, can we really conclude this project? ; will we be able to use the results? ; will the results be long-lasting? and can success be evaluated?. This will help determine if the outputs sought by the project are realistic and it will allow development of a logical pathway from action to outcome. While lofty goals are important, we must not lose sight of the need to make stepwise progress and achieve reasonable milestones in order to determine if the process is working adequately, or if the management strategy or action needs adjusting. Management interventions need measurable deliverables. Probably the most important consideration in today s era of new ocean stewardship is that there needs to be a logical flow from the action or task implemented on the ground through to management intervention and onwards towards the overall goal. A key aspect of this process is Dr. Nicolas J. Pilcher, September 2007

16 the design of actions, tasks and interventions in a way that their success can be measured, evaluated and if necessary adapted. This logical process is one of assuming responsibility, acting to conserve marine resources and be accountable for their losses at a global level. The objective of having measurable deliverables that correspond with the original objectives is so participants and/or stakeholders can determine if their efforts are succeeding. With an action which reads Improve turtle conservation at nesting beaches it will be hard to determine if the action will lead towards achieving the desired goal, whereas an action which reads Designate the three main foraging sites in the SSS as key Protected Areas or Maintain nesting populations of at least 2000 turtles annually on the TIHPA islands can be measured. That is, a manager can easily determine if they have been met or not. Other examples include A reduction of bycatch by 70% within 5 years or A phase-put of domestic curio trade in three years, or Stabilisation or increase in population within 10 years. Management interventions need both short-term and longterm objectives. We must consider the time-scale upon which turtle populations replenish. It is of little use having a two year conservation project which protects nesting turtles and eggs, if poachers are allowed to continue taking eggs and adults after the project is over. Due to the long-lived nature of marine turtles, conservation strategies need to have a long term vision. Similarly, many normal, fishery-style management interventions are not applicable to sea turtles, as their maturation period far exceeds normal fishery seasons. Typical fishery regulations allow for a particular fish species to reproduce before being harvested, and closed seasons allow the final stages of growth and maturation, reproduction, and dispersal of juveniles. Only then is the fishery opened to commercial harvests. With turtles, which need a thirty year maturation period, it is of little use having a closed season, say January to July, if they can continue to be caught August through December. Management interventions need local know-how. When local communities are involved and share their local and cultural knowledge, there are often opportunities to merge modern conservation strategies with age-old traditions. Contemporary scientific information is a second link in the process, as without it many of today s threats could not be quantified, addressed, and much of our knowledge of the lifecycles of turtles would not exist. Turtles are an important component of marine ecosystems, they offer benefits far beyond the tangible, and thus their conservation is a public process, not that of a handful of dedicated individuals. Effective conservation thus requires a widespread awareness campaign, coupled with programmes which provide alternative livelihoods to those affected by conservation activities, supported by quality research and monitoring of turtle populations all are components of this Regional Action Plan. The following sections outline key actions to promote the conservation of marine turtles and their habitats, and provide a timescale framework within which these actions are currently considered as important. It is suggested that this plan be reviewed after five years, and that a matrix be drawn up which will reflect on achievements based on this plan. The plan should not be viewed as static, and modifications to the plan should then follow. Each section is complemented by a series of actions/ indicators which are based on a SMART programmatic approach: Simple - Is the indicator easily interpreted, monitored, and appropriate for community use? Measurable - Can it be statistically verified, reproduced and compared? Is it able to be aggregated? Is it responsive to changes in management? Does it show trends over time? Accessible - Can it be regularly monitored? Is it costeffective? Is it consistent with other data sources? Regional Action Plan for the Conservation of Marine Turtles and their Habitats in the Sulu-Sulawesi Seascape

17 Relevant - Is it related to a valued natural resource management factor? Is it linked to regional natural resource management goals and priorities? Timely - Does it provide an early warning of potential problems and highlight future needs or issues? These indicators should act as a measure upon which the implementation of the RAP may be gauged. Dr. Nicolas J. Pilcher, September

18 2. REDUCING DIRECT AND INDIRECT CAUSES OF MARINE TURTLE MORTALITY Turtles have been used by coastal people for many generations, and have been important nutritional components to villager s diets in remote locations, away from major populated areas, in key conservation areas, and on remote offshore islands. Female turtles are still slaughtered as they emerge on the beaches to nest, and a number of adults and juveniles are harvested with nets in shallow water environments. Turtles are also frequently killed accidentally in coastal gillnets and by local and foreign commercial shrimp trawlers which operate in nearshore waters. Hatchlings and eggs are threatened through beach development for tourism and industry, and eggs are collected indiscriminately throughout turtles range. Marine turtles have a low intrinsic rate of population growth resulting from a combination of long maturation period and low survivorship from egg to adult and nonannual breeding. For this reason depleted marine turtle populations which have been depleted can take several hundred years to revert to their original population size, if at all. Due to the long period between egg-deposition and adult nesting, many people are unaware of the changes in population structure as little change is detected during their working lifetimes. For example, the continued and near-complete removal of eggs from nesting beaches would not change the number of females emerging to nest for several decades, leading many to believe the population was in a healthy state. However, after a long period of time few animals would be recruiting to juvenile and adult sub-classes, and the viability of the population would be in danger. Due to the longevity of the turtles and the diverse nature of the threats they face, a Regional Action Plan for marine turtles in the SSS must continually identify and quantify important sources of mortality, both direct and indirect (such as incidental mortality through artisanal fishing operations), and in all life stages. More importantly, though, mitigating solutions must then be designed and implemented, or at the very least (in the short term) the level/consequence of risk determined for each threat. A particular case in hand relates to the continued but all too infrequent capture of foreign fishing vessels carrying hundreds of slaughtered turtles for overseas markets. What is the magnitude of their overall impact? What turtle stocks are affected by this fishery? What needs and can be done about bringing it to an end? Action 1: Identify and document the threats to marine turtle populations 1a. Document and collate existing anecdotal and empirical data on the nature and magnitude of threats to marine turtle populations; 1b. In particular document and collate any existing data on the nature and magnitude of mass poaching by unlicensed and unregulated foreign vessels; 1c. Determine those turtle stocks (for each species) affected by traditional and direct harvest, mass poaching, incidental capture in fisheries, and other sources of mortality. Action 2: Minimise threats to marine turtle populations 2a. Enact and enforce legislation requiring the use of gear, devices and techniques to minimise incidental capture of marine turtles on commercial trawlers in the SSS, such as promoting and requiring the use of TEDs and addressing the impacts of coastal gillnets, possibly through the use of emerging sonic pinger technology; 2b. Develop a research and development project to address the use of emerging sonic pinger technology to reduce impacts of coastal gillnets; 2c. Develop and implement reasonable coverage ongoing observer programme on commercial trawlers and purse seine vessels to promote compliance and provide accurate unbiased reporting; 2d. Exert pressure through various legal levels and means on outside governments to minimise the impact of mass poaching vessels intruding in SSS waters. 2e. Reduce by 75%, and where possible eliminate, light pollution at key nesting sites; 2f. Regulate, and where possible eliminate, development and modification of key nesting sites; 11 Regional Action Plan for the Conservation of Marine Turtles and their Habitats in the Sulu-Sulawesi Seascape

19 2g. Reduce by 50%, and where possible eliminate, direct harvests of adults turtles and eggs through the development and expansion of alternative livelihood and public awareness programmes; 2h. Reduce by 75%, and where possible eliminate, predation on marine turtles at key nesting sites by feral animals such as monitor lizards, dogs and pigs at nesting sites; 2i. Adapt and adopt the best conservation and management practices for marine turtle populations, such as those provided by the IUCN Marine Turtle Specialist Group in its Technical Volume IV, reflecting the latest scientific and technical knowledge, particularly with regard to nesting populations and hatchery operations, and the SEAFDEC Hatchery Guide. Action 3: Implement programmes which provide alternatives to communities dependant in some manner on marine turtle populations 3a. Conduct and/or expand, where needed, socioeconomic studies that identify the socio-economic factors that underlie use or turtles and exploitation of habitat and the socio-economic factors that would determine the uptake/development of management programs among communities which interact with marine turtles and their habitats; 3b. Identify desired modifications to the socio-economic incentives in order to reduce threats and mortality, and develop programmes to implement the modifications; 3c. Identify resources and sources of funding for those programmes. Action 4: Regulate the direct capture or killing of, and domestic trade in, marine turtles, their eggs, parts or products 4a. Conduct gap analyses on legislation the aim of which are to (1) identify threats that are not covered under current legislation (local, state and national) and (2) identify the processes that need to be undertaken to legislate for threats not already covered; 4b. Strengthen implementation of existing legislation which prohibits direct harvest and domestic trade of egg, meat, parts and products of all species; 4c. Regulate, and where appropriate eliminate, fishery practices and gear types at key foraging sites, and at nesting sites and internesting habitats during reproduction seasons. Action 5: Develop nesting beach management programmes to maximize hatchling recruitment 5a. Re-evaluate the effectiveness of any nest and beach management programmes, particularly the use of hatcheries over beach management practices, in keeping with the biology of the species and recommendations set forth in the IUCN MTSG Technical Volume No. IV; 5b. Reduce the mortality of eggs and hatchlings to so that at least 80% of eggs are producing hatchlings, thus promoting recruitment and survival, preferably using conservation techniques that emphasize natural processes wherever possible; 5c. Reduce mortality of eggs and hatchlings caused by feral and domestic animals by 80%; 5d. Develop and adopt tourism guidelines where appropriate to manage human impacts on turtles through eco-tourism activities; 5e. Monitor sand temperatures at a standard depth to use as a baseline for detecting climate change. Action 6: Promote marine turtle rescue and rehabilitation activities 6a. Incorporate a measure of turtle rehabilitation activities within existing wildlife management, government agency and educational / research facilities; 6b. Promote the development of stranding networks and focal points; 6c. Promote collaboration and information exchange among regional and national agencies and institutions during emergency or disaster situations; 6d. Provide specialised training in sea turtle rescue and rehabilitation procedures. Dr. Nicolas J. Pilcher, September

20 Expected Results Outcomes and Time Frame a. A workshop dedicated exclusively at determining, methods to minimize or eliminate, and prioritizing action to mitigate against local threats to marine turtles and their habitats (***)(6 months); b. Initial dialogue between SSS members, ASEAN and neighbouring countries to address illegal mass poaching(***)(6 months); c. Implementation of pilot programmes which reduce the levels of indirect mortality in commercial fisheries though the adoption of TEDs and other technology (***)(12 months); d. Initiation of by-catch monitoring and reduction efforts by fishing operators (**)(12 months); e. Training workshops for commercial fishing operations and enforcement personnel in the use and benefits to fishers concerning turtle friendly fishing gears (**)(6 months); f. Regulatory measures for the control of uses and development of key nesting (where applicable) and foraging habitats (**)(12 months); g. Implementation of best practice conservation methods as outlined by the IUCN-SSC Marine Turtle Specialist Group particularly as they relate to on-the-beach management of turtles, eggs and hatchlings (***)(12 months and onward); h. Materials assimilated and / or developed to promote sea turtle rehabilitation both on fishery vessels and through coastal stranding networks (*)(12 months and onward). and other stakeholders; c. Legal leverage exists at a variety of scales (local, state, national) through which all threats to marine turtles and their habitats can be addressed; d. Government agencies work in partnerships with local communities to moderate and where possible eliminate direct take; e. Commercial and artisanal fishing operations no longer cause the mass mortality of marine turtles, evidenced through lower reports of incidental capture and infrequent strandings of dead turtles on coastlines f. Appropriate levels of protection are afforded at key nesting and foraging sites which minimise and regulate direct take and accidental mortality of turtles; g. Social, cultural and economic factors that underpin turtle and habitat management are understood and considered in management. Performance Indicators and Quality Assurance a. Clear guidelines/methods exist as to eliminate or reduce the threats to marine turtles and methods to eliminate and reduce these to levels where marine turtle populations do not drop below current levels and trends do not decline; b. By-catch mitigation efforts are underway at major fisheries in the SSS and monitoring programmes collect empirical data on bycatch and, provide feedback on the success of mitigation efforts to Fisheries agencies, Fishers 13 Regional Action Plan for the Conservation of Marine Turtles and their Habitats in the Sulu-Sulawesi Seascape