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RFLPFIELDPROJECTDOCUMENT2012/TIM#5SAFETYATSEAASSESSMENTINTHETIMOR-LESTESMALL-SCALEFISHERIESSECTORTechnicalreportRFLPFieldProjectDocument2011/TIM#51/7/2012NationalDirectorateofFisheriesandAquacultureMinistryofAgricultureandFisheriesRegionalFisheriesLivelihoodsProgrammeforSouthandSoutheastAsiaTimor-LesteRFLPFieldProjectDocument2012/TIM#5SAFETYATSEAASSESSMENTINTHETIMOR-LESTESMALL-SCALEFISHERIESSECTOR22REGIONALFISHERIESLIVELIHOODSPROGRAMMEFORSOUTHANDSOUTHEASTASIA(RFLP)SAFETYATSEAASSESSMENTINTHETIMOR-LESTESMALL-SCALEFISHERIESSECTORTECHNICALREPORT(ActivityCode:2.
1.
1&2.
1.
2Workplan2011)FortheRegionalFisheriesLivelihoodsProgrammeforSouthandSoutheastAsiaPreparedbyTeresaNaoTsujimuraSafetyatSeaConsultantRFLPTimor-LesteEnriqueAlonsoRFLPTimor-LesteTechnicalAdvisor/TeamleaderRFLPTimorLesteLourencodosReisAmaralChiefofFisheriesInspectionDepartmentNationalDirectorateofFisheriesandAquaculturePedroRodriguesNationalProjectCoordinatorRFLPTimor-Leste20123DisclaimerandcopyrightThispublicationhasbeenmadewiththefinancialsupportoftheSpanishAgencyofInternationalCooperationforDevelopment(AECID)throughanFAOtrust-fundproject,theRegionalFisheriesLivelihoodsProgramme(RFLP)forSouthandSoutheastAsia.
ThecontentofthispublicationdoesnotnecessarilyreflecttheopinionofFAO,AECID,orRFLP.
Allrightsreserved.
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Applicationsforsuchpermissionshouldbeaddressedto:ChiefElectronicPublishingPolicyandSupportBranchCommunicationDivisionFAOVialedelleTermediCaracalla,00153Rome,Italyorbye-mailto:copyright@fao.
orgFAO2012BibliographicreferenceForbibliographicpurposes,pleasereferencethispublicationas:Tsujimura,T.
N.
,Alonso,E.
,Amaral,L.
&Rodrigues,P.
(2012).
SafetyatseaassessmentintheTimor-Lestesmall-scalefisheriessector.
Technicalreport.
Bangkok:RegionalFisheriesLivelihoodsProgrammeforSouthandSoutheastAsia(GCP/RAS/237/SPA)FieldProjectDocument2012/TIM/1.
RFLPFieldProjectDocument2012/TIM#5SAFETYATSEAASSESSMENTINTHETIMOR-LESTESMALL-SCALEFISHERIESSECTOR44EXECUTIVESUMMARYThisreportcontainsanassessmentofcertainsafety-relatedissuesinTimor-Lestessmall-scalefishingsector.
BasedonRFLPexperienceandthecurrentdataavailableonthefisheriessectorinthecountry,thereportisintendedtoprovideasetofrecommendationsforthefurtherdevelopmentofnationalpolicyandlegalframeworkstoenhancethesafetyofsmall-scalefishers.
Thefirstsectionprovidesananalysisofthecurrentlegalframeworkforsafetyatseawithastrongfocusonthesmall-scalefishingsector.
Fromprevioussurveysandtheassessmentundertaken,itisapparentthattheimplementationofthecurrentfishing-relatedlegalprovisionscannoteasilybemet.
Beyondthelimitationsinhumancapitalandresourcesforenforcement,theimportednatureofthelegalframeworkhindersitsimplementationinthecountry.
ThesecondpartofthisreportcontainstheresultsofavesselassessmentconductedinTimor-Lestein2011.
Thepurposewastocomparethecurrentalternativesinboatconstructionandbuildingandtoassessthesuitabilityofcurrentpoliciesaimedattheintroductionoffibre-glassboats.
TheboatassessmentwasafirststeptowardsabetterunderstandingofthecurrentsafetyatseasituationinTimor-Lesteandprovidesinputonhowtomoveforwardinordertopromotesafervesselsforfishers,takingintoaccountthecurrentconstraintsformaterialsandskillsinthecountry.
ThethirdsectionofthereportgivestheinitialfindingsfromthefirstyearofoperationoftheaccidentreportingsystemestablishedbyRFLP.
Inaddition,thisreportsummarizessomeofthesuggestionsandrecommendationsthathavebeenintegratedintodifferenttrainingcoursesandawarenessactivitiesdeliveredtofishergroups.
TheseincludethosewhoreceivedfishingboatsfromthegovernmenttowhomRFLPprovidedadviceonhowtoimprovethestabilityoftheboatswhichtheyhadreceived.
RFLPalsoheldinformalmeetingswithboatbuilderstodiscusshowtoimprovethequality,durabilityandsafetyoftheboatstheyconstruct.
Finally,thisdocumentprovidesspecificpolicyrecommendationsfortheNDFA,whicharebasedontheresultsoftheassessmentsandonRFLPexperience.
SUMMARYOFRECOMMENDATIONSForthelegalprovisionsonsafetyatsea1.
Timor-LesteshouldconsidersettingupitsownFlagStatewiththeInternationalMaritimeOrganization(IMO)assoonaspossible.
Timor-Lestealsoneedstoselectqualityinspectionbodies.
2.
Theinspectionbodyforshipbuildingshouldbeestablishedundertheumbrellaofaninter-ministerialbodywhichatleastshouldincludeboththePortAuthorityandtheDirectorateofFisheriesasmembers.
CoordinationbetweentheNDFAandthePortAuthorityshouldbeensured.
3.
InspectionoffishingboatsshouldcontinuetobetheresponsibilityoftheDepartmentofFishingInspectionoftheNDFA.
Inthisregard,specificcapacitybuildingfortheDepartmentstaffshouldbeprovidedinthenearfuture.
4.
Minimumtechnicalrequirementsfortheissuanceofcertificatesaswellasforthedevelopmentofdesignsshouldbeestablishedandapproved.
TheTimor-LesteFisheriesTechnicalSchoolprojectshould5addressthelackofinstitutionsabletoprovidetherequiredcertificatesandintegratethemintotheircurriculum.
5.
Theproceduresestablishedbylawfortheissuanceoffishinglicensesshouldberevisedandsimplified.
6.
Theclassificationofthefleetshouldbesimplifiedtoensurethatallvesseltypeswithinthefleetaredefinedandsafetyatsearegulationsapplytothem.
Boatcategoriesshouldbeclassifiedbyasimplesetofcriteria.
7.
Appropriatevocationaltrainingcoursesshouldbedeliveredforskippersandboatoperatorstoimprovesafetyatsea.
TheestablishmentoftheTechnicalSchoolcanprovideaproperplatformforthis.
8.
Specificequipmentcanberequiredfortheoperationofsmall-scalevessels.
Ifspecificlegislationonsafetyatseaforsmall-scalefishingvesselsisdeveloped,theinfrastructureandbudgetlimitationsoftheNDFA,theconstraintsoffisherstopurchaseequipmentandothercharacteristicssuchasboatcapacityshouldbetakenintoaccount.
9.
Whileawarenessraisingshouldbeconductedfordiversonthesafetymeasurestoavoidthehighestrisksduringfishing,specificregulationssuchasthesettingupoftheminimumdistancebetweendiversduringoperationsshouldbewithdrawn.
Resources,numberofstaffandbudgetavailablemaketheenforcementofthiskindofprovisionalmostimpossible.
Inadditionthistypeofregulationcanbeusedasameanofabusebytheauthoritiesagainstresourceusers.
10.
TheintroductionoftheRFLPpromotedCommunityBasedIUUreportingsystemusingSPOTshouldbecomeregularizedasanationalpolicyonIUU.
11.
TheformalizationoftheIUUCommunityBasedIUUreportingsystemshouldbeaccompaniedbythecreationofabodytorespondtocallsforhelpandreportsofillegalfishingactivitiessentbyfishersusingthereportingdevices.
ThisNationalMaritimeSecurityCommitteeshouldbecomposedbyallMinistriesinvolvedinmaritimerelatedmatters.
12.
MoreawarenessraisingoncurrentfisheriesregulationsshouldbecarriedoutthroughthealreadyestablishedMobiledisseminationoffisherieslawsprocess.
Disseminationoflawsshouldbesimpleandadaptedtotheneedsandcapacityoftheaudience.
13.
MoreemphasisshouldbegiventoimprovingthecapacityoftheNDFAstafftoappropriatelyinterpretthelaw.
Thisemphasisshouldtakeintoaccountthelanguageconstraints.
14.
Developmentofnewlawsandorrevisionofthelegalframeworkmustnotbeconsideredanaiminitself.
Importedlegalprovisionsshouldbeavoidedandaspecificlegalframeworkinlinewiththeneedsandstructureofthesmall-scalesectorshouldbedeveloped.
Theabsenceoflawcanbemorebeneficialthantheimplementationofinaccuratelaws,astheycanfacilitatepowerabuse.
15.
Moreemphasisshouldbegiventoenhancethecapacityofspecificallyfisheriesplannersandmanagersaswellasinproducingmaterialswhichincorporateabetterunderstandingofthelaw.
However,itishighlynecessarytohaveinputfromalegaladvisortoprovideon-the-jobsupportandmentoringforNDFAstaffonadailybasis.
RFLPFieldProjectDocument2012/TIM#5SAFETYATSEAASSESSMENTINTHETIMOR-LESTESMALL-SCALEFISHERIESSECTOR66Forboatassessment16.
Thedonationoffreeboatsisstronglydiscouraged.
Approachesinvolvingtheusersasco-responsibleofthesustainabledevelopmentofthesectorandnomererecipientsshouldbepursued.
17.
Anypolicyaimedatrenewingthefishingfleetshouldinvolveallthegovernmentandnon-governmentactorsinvolvedinthesector.
18.
ThenewlyestablishedBancoNacionaldeTimorLesteprovidesagoodopportunitytodevelopaspecialloanschemeforfishersinordertoestablishaProgrammeforthedevelopmentofthefisheriessector.
19.
InordertoimprovetheworkingconditionsoffishersaProgrammefortherenovationofthefleetcouldbesetupwhichwithdrawsunsafeboatsoperativeincountry.
20.
ThealreadypilotedAccidentatsearecoveryprogramme,shouldbecontinued.
21.
Thethreeprogrammeschemesmentionedabove,namelytheProgrammeforthedevelopmentofthefisheriessector,theProgrammefortherenovationofthefleetandtheAccidentatsearecoveryprogrammecouldconstitutethreelinesofactionundertheumbrellaoftheFundforthedevelopmentofthesmallscalefisheries,regulatedunderthecurrentlaw.
22.
Iffishingboatsaretobesuppliedunderanyoftheabovementionedprogrammeschemesthataredevelopedbyappropriaterelevantinstitutions,itshouldbeconsideredthata)Atechnicalbodyshouldbeestablishedtoassesstheboatswhicharetobepromoted,b).
specificbeneficiaryselectioncriteriashouldbeestablishedandagreed,andc)beneficiariesshouldsignacontracttocontributedataonfishcatchandotherinformationasrequiredbytheNDFA.
23.
Indevelopingmoreprogrammesaimedattheintroductionoffibre-glass,itshouldbenotedthatcurrentlyfisherscannotaffordtopurchasefibre-glassboats.
Inthisregard:a)theforestrypolicyshouldbereconsideredinordertoaccommodatetheneedsandpossibilitiesoffishingfamilies;b)itisrecommendedthatsupportisgiventoregularmaintenanceofwoodenfishingvessels.
Othersafetyatseamatters24.
Anationalawarenessraisingcampaignonsafetyatsearelatedmattersshouldbeconducted.
25.
Specificawarenessrisingcampaignsondiving-relatedrisksshouldbecontinued.
26.
Specifictrainingcoursesshouldbedesignedforboatbuildersinorderforthemtoprovideinformationontheloadingcapacityoftheboats.
27.
Specificawarenessraisingshouldbecarriedouttoencourageboatuserstopracticeregularmaintenanceoftheirfishingboats.
28.
TrainingcoursesonenginemaintenanceandrepairshouldbecontinuedbeyondtheRFLPperiod.
Specific29.
Themajorityofaccidentsatseaarecausedbysaltwatercrocodileattackwhichareregardedassacredbeings(lulik).
A)Inter-disciplinaryresearchshouldbedone.
B)Anyactiontomitigatecrocodileattackshouldbeculturallysensitive.
C)Anykindofcoastallivelihoodslikelytostimulaterelocationofpeopletoareasnearlakesormangrovesarestronglydiscouraged.
7TABLEOFCONTENTSEXECUTIVESUMMARY4SUMMARYOFRECOMMENDATIONS4TABLEOFCONTENTS.
7TABLEOFACRONYMS.
81.
INTRODUCTION92.
PARTI.
TIMOR-LESTELEGALFRAMEWORKFORSAFETYATSEA.
112.
1Currentsafetyatseameasuresinthelaw.
112.
2Gapsandconstraintsintheenforcementofthecurrentlegalframework133.
PARTII.
VESSELASSESSMENT173.
1Backgroundinformation.
173.
2Specificobjectives.
183.
3Methodology.
183.
4Summaryofassessment.
20Woodenvesselswithoutoutriggers.
20Outriggerwoodenboats22Fibre-glassNautilus2008vessel.
26Fibre-glassTuna2009-2012vessel.
285.
PARTIII.
ACCIDENTSATSEA.
30RECOMMENDATIONS.
35BIBLIOGRAPHY.
40TABLEOFBOXES41TABLEOFFIGURES.
41TABLEOFTABLES41RFLPFieldProjectDocument2012/TIM#5SAFETYATSEAASSESSMENTINTHETIMOR-LESTESMALL-SCALEFISHERIESSECTOR88TABLEOFACRONYMSDFODistrictfisheriesofficersEEZExclusiveeconomiczoneFAOFoodandAgricultureOrganizationIMOInternationalMaritimeOrganizationISOInternationalOrganizationforStandardizationMAFMinistryofAgricultureandFisheriesNDFANationalDirectorateofFisheriesandAquacultureNGONonGovernmentalOrganizationPSCPortStateControlRFLPRegionalFisheriesLivelihoodsProgrammeTLTimor-Leste91.
INTRODUCTIONTheRegionalFisheriesLivelihoodsProgrammeforSouthandSoutheastAsia(RFLP)setsouttostrengthencapacityamongparticipatingsmall-scalefishingcommunitiesandtheirsupportinginstitutionsinCambodia,Indonesia,thePhilippines,SriLanka,Timor-LesteandVietNam.
Bydoingso,theRFLPseekstoimprovethelivelihoodsoffishersandtheirfamilieswhilefosteringmoresustainablefisheriesresourcesmanagementpractices.
WithintheframeworkofRFLPTimor-Leste,asafetyatseaassessmentwasplannedin2010-2011underRFLPOutput2,aimedatimprovingsafetyatseaandreducingthevulnerabilitiesoffishingcommunities.
BeyondtheRFLPBaselineSurveyresultsonsafetyatsea(AMSATInt.
,2011),whicharebasedonrespondentsanswers,itwasconsideredappropriatetocarryoutafurtherevaluationofthecurrentsafetyatseaconditionsfromatechnicalperspective.
Severalobjectiveswerepursued:firstofall,toidentifygapsandopportunitiesinthecurrentfisherieslegalframeworkonsafetyatseaforsmall-scalefishers;second,todocumentandreportonthepracticesofconstructionandmaintenanceofboatsinTimor-Leste,andthirdtopresenttheresultsofthefirstyearofoperationoftheaccidentreportingsystemsetupbytheRFLPaspartoftheNationalFisheriesStatisticalSystem.
TheresultsofthepresentassessmentarebasedonprimarydatagatheredbytheNDFA-RFLPfrom2010onwards,aswellasontheexperiencesofactivityimplementationoftheRFLP.
ThefirstpartofthepaperisfocusedonthelegalprovisionsundertheTimor-Lestefisherieslaws.
BasedonananalysisofthelawandtheknowledgegainedontheTimor-Lestefisheriessector,somepolicyrecommendationsareprovided.
ThesecondpartsummarizestheresultsofaboatassessmentconductedbytheRFLPaspartofitsregularprogramme.
ThemorewidelyusedboatsinTimor-Lestewereassessed,includingmaintenance,materialsandconstruction.
ThevesselassessmentwascarriedoutasitwasidentifiedduringfieldvisitsthatmanyoftheboatsownedbyTimor-Lestefishershaddeficienciesinconstructionanddesignandsomewerenotappropriatefortheirintendedpurpose.
Additionally,itwasidentifiedthatthedesignandqualityofthefibre-glassboatsdeliveredbydifferentstateinstitutionsshouldbeimprovedinordertoensuresafetyforusers.
Thevesselassessment,aswithallsafetyatseaactivitiesoftheRFLP,involvedseveralNDFAstaff,whoreceivedonthejobtraining/mentoringinordertoprovidesustainabilityaftertheRFLPperiod.
Thethirdpartisaimedatpointingoutissuesthatwerenotcoveredbythebaselinesurvey,butthatarecrucialfromasafetyatseaperspective.
Thisthirdsectionisbasedonthedatafromthefirstyearofoperationoftheaccidentreportingsystem,whichhasshedsomelightontheactualcausesofaccidentsatseainthecountry.
Reducingthevulnerabilityforfishersandtheirfamiliesandimprovingsafetyattheworkplaceshouldbeaprimaryconcernforallstateinstitutions.
Currently,severalMinistryofAgricultureandFisheries(MAF)partnersworkingwiththeNationalDirectorateofFisheriesandAquacultureplantocarryoutrevisionsoffisheriespoliciesorpartsofthelegalframework.
Inordertoavoidthemistakesofthepast,itiscrucialthatnewfisheriespoliciesandlawsusethebestcurrentlyavailabledataandaredevelopedwithanindepthknowledgeoftheparticularidiosyncrasiesofthesectorincountry.
Thepresentpapersummarizesthepreliminaryfindingsarisingfromtheavailabledataandsummarizesrecommendationsforbothpolicyandplanning,aswellasforfishers.
TheadviceforfishershasbeenintegratedaspartoftheactivitiesofRFLPunderoutput2(Safetyatseaandreducedvulnerability)from2010to2013,whichincludedawarenessraising,capacitybuilding,datagatheringandmanagement.
ThisreportisframedwithinawidersafetyatseastrategyoftheRFLP,aimedatdocumenting,identifyinggapsandincreasingthecapacityofthegovernmentandthecommunitiestoreducethenumberofaccidentsatsea.
Themainobjectiveofthisreportistoserveasatoolforpolicymaking;assuchitcontainssomespecificnotesforRFLPFieldProjectDocument2012/TIM#5SAFETYATSEAASSESSMENTINTHETIMOR-LESTESMALL-SCALEFISHERIESSECTOR1010furtheractionbyfisheriesmanagersandplanners.
Withaviewtoensuringfurthersustainabilityoftheeffortsputinplacefrom2010,thisreportalsoformsanintegralpartoftheRFLPexitstrategy.
112.
PARTI.
TIMOR-LESTELEGALFRAMEWORKFORSAFETYATSEA2.
1CurrentsafetyatseameasuresinthelawNowadays,mostcountriesrecognizetheimportanceofsafetyatsea.
Improvingsafetyatseabydevelopinginternationalregulationsisinthecommoninterestofnations,maritimeworkersandcompaniesthatcarryoutmaritime-relatedactivities.
AllinternationalvesselsusingportsshouldbesubjectedtothePortStateControl(PSC)inspectionsandadditionalcontrolmeasures.
Furthermore,thequalityofinspectionbodieshasattractedconsiderableattentioninrecenttimes.
DespiteTimor-LestebeingafullmemberoftheInternationalMaritimeOrganization(IMO)1thecountryisnotregisteredasaFlagstatewiththeInternationalMaritimeOrganization(IMO),norhasitsetupanymarineorganization.
Moreover,ithasyettoselectaninspectionbodyforsafetyatsea.
Sinceitsindependence,theTimor-LesteNationalFisheriesandAquacultureDirectorate(NDFA)developed,intheframeworkofsuccessiveprojects,severalpoliciesandstrategiesforthesector.
The2001FishfortheFuture(MAF,2001)ismostlyfocusedonthedevelopmentofthesectorandthebasiclegalframeworkformanagementofthefishery,butdoesnotaddresssafetyatseamatters.
Asimilarsituationexistswiththedocumentdevelopedin2005(MAFF,2005)aswellasthelateststrategicplandevelopedafterthe2006crisiswhichwasre-focusedtowardsenvironmentalsustainability(MAF,2007).
Atthetimewhentheselegalandpolicyframeworksweredevelopedtheinformationavailableonthesectorwasscarceandstateinstitutionswerestillinaprocessofformation.
Howeverarecentlydraftednon-officialplan2010-2030developedbytheNDFAcontinuedtofocusondevelopmentandresourcemanagementofthefishery,anddidnotcontainanyspecificactionsforsafetyatsea.
Despitethis,theMinistryregularlyrecognizestheimportanceofsafetyatseaforfishworkersandcoastalcommunitieswhoselivelihoodsarecloselylinkedwiththesea.
Currently,RFLPistheonlyfisheriesprojectworkingonsafetyatseamattersforsmall-scalefishersinthecountry.
Activitiesandsafetyatseastrategiesarestronglysupportedbythegovernmentaswellasfishersorganizations.
TrainingandotheractionsarewelcomedbythefishersandhavebeenrequestedbyinstitutionsoutsidethescopeoftheRFLP.
AsareflectionoftheshiftinfocusandthecommitmentoftheNDFAtothesafetyoffishersattheirworkplace,safetyatseaisbeingincludedintheofficialfiveyearstrategyplanoftheMinistryofAgricultureandFisheries(2014-2018).
ThefishingfleetinTimor-Leste(TL)ismainlycomprisedofsmallwoodencanoes,weighinglessthanonegrosston2,thatarelocallyconstructedbyfishers.
UnderTimor-Lestelegislationthissmall-scalefleetisnotsubjecttoanyspecificregulationaddressingsafetyatsea.
Inaddition,onlyafewarticlesinthecurrentfishinglawshaveanydirectorindirectimplicationsonsafetyatseaforfishworkersandfishers.
Withindecreelaw6/2004andgovernmentdecree5/2004,thefollowingarticlescontainsafetyatsearelatedprovisions3:1TheInternationalMaritimeOrganization'sfirsttaskwhenitcameintobeingin1959wastoadoptanewversionoftheInternationalConventionfortheSafetyofLifeatSea(SOLAS),themostimportantofalltreatiesdealingwithmaritimesafety.
TheIMOhasalsodevelopedandadoptedinternationalcollisionregulationsandglobalstandardsforseafarers,aswellasinternationalconventionsandcodesrelatingtosearchandrescue,thefacilitationofinternationalmaritimetraffic,loadlines,thecarriageofdangerousgoodsandtonnagemeasurement.
(ExcerptedfromIMOhomepage,www.
imo.
org).
ForTimorLesteseeDecree-Law4/2003.
2ThefirstTimor-LestenationalcensusoffishersandboatswasconductedbytheNationalDirectorateofFisheriesandAquacultureduring2011-2012withthesupportoftheRegionalFisheriesLivelihoodsProgrammeforSouthandSoutheastAsia.
Itispubliclyaccessibleatwww.
peskador.
org3TheaccountbelowrefersmostlytotheGD5/2004;whenreferringtoDL6/2004,specificreferenceisgiven.
RFLPFieldProjectDocument2012/TIM#5SAFETYATSEAASSESSMENTINTHETIMOR-LESTESMALL-SCALEFISHERIESSECTOR1212i.
Article18iv)providesthattherequestofalicenseforindustrial,semi-industrialandfisheryrelatedoperationsmustbeaccompaniedbyaValidCertificateofSeaworthiness.
Article15ofDL6/2004providesthatwhentheship-ownerdoesnothaveafishingvesselinoperationalconditionsduringtheperiodofvalidityofthepermit,thelicenseapplicationshouldberejected.
ii.
Article49inDL6/2004establishesperiodicinspectionsasamandatoryrequirement,althoughtheirperiodicityisnotfurtherspecified.
BasedonDG5/2004,theannuallicenseforcommercialfishing,whichisnottransferablebetweenvessels(asperart.
29DL6/2004),shallbesubmittedinallcasesfollowinganinspectionofthefishingvesseltowhichthelicensewasissuedasperarticle24inDL6/2004and23DG5/2004.
Article24DG5/2004providesthat"Theinspectionshallverifywhetherthefishingvesselisinaccordancewiththefisherieslegislationinforcewithregardto,amongothers,(a)Compliancewiththehygienic-sanitaryrules;(b)Existenceoffacilitiesandequipmentrequiredon-board;(d)Suitabilityofthefishingvesseltothetypeoffishingforwhichthefishinglicensewasrequested;(f)CertificateofSeaworthiness;or(g)Compositionofthecrewinaccordancewiththeapplicablelegislation.
Basedonarticle115,thesamelicensingconditionsapplyingtothecommercialfishingfleetalsoapplyforthenon-commercialfleet;amongthemtheinspectionofthevessels(asperarticle130,132).
iii.
Article49regulatestheconstructionrequirementsandequipmentofsemi-industrialfishingvessels.
Amongothermeasuresitenvisagesthatsemi-industrialfishingboatsshouldi)Beequippedwithradar,probeandradioaswellaswithotherdevicesrequiredbymaritimelegislation;and(k)Beequippedwithrescueandemergencyequipmentestablishedbyappropriatelegislation.
iv.
Article50onhygiene,handlingandprocessingoffishon-boardsaysthat"Semi-industrialfishingvesselsshallmeethygienic,sanitary,handlingandprocessingrequirements,inaccordancewithspecificregulations".
v.
Thesameprovisionsforarticles49and50forthesemi-industrialfleetarementionedinarticles52and53,whichregulatethehygieneandconstructionrequirementsrespectively,butfortheindustrialfleet.
vi.
Article58establishesthattheconstructionandmodificationofsemi-industrialandindustrialfishingvesselsneedsauthorizationfromtheMinistry.
Article59ontherequirementsforthementionedauthorization,establishthattheapplicationshallcomprisethefollowingelements:b)Thecharacteristicsofthefishingvesselandfishinggearstobeused;(d)Thegeneralarrangementplanandthedescriptivememoryofthefishingvesselincaseofconstructionormodificationofafishingvessel;(e)Atechnical-economicaljustificationfortheconstructionormodificationproject;(g)Acopyofthelastfishinglicenseissuedifafishingvesselhaspreviouslybeeninvolvedinfishingactivity;(h)Informationontheoverallstateandlocationofthefishingvesselprovidedbythecompetentmaritimeauthority;(j)Thedraftcontractoftheconstructionormodification,indicatingatwhichshipyardorworkshoptheworkwillbeundertaken.
vii.
Article60saysthatanyforeignfishingvesselcharteredbyanationalforindustrialorsemi-industrialfishingcannotbeolderthan10years(fromthetimeofconstruction),althoughitcanbe"authorisedwhenvesselisinanoverallgoodstateandwhenitssuitabilityforfishinghasbeendulyconfirmeduponinspectionbythecompetentserviceoftheMinistry.
"viii.
Article64providestherequirementsforcharteringauthorization:besidesthecharacteristicsoftheboatorthehygieneconditions,nosafetyatsearelatedcertificateisrequested.
Thesameappliesforthecharteringofnationalboats(inarticle65).
Article44inDL6/2004providesthatincaseofabreakdownorinoperabilityofalicensedfishingvesselforalongperiodoftime,theMinistermayauthorize,foraperiodtobedefinedbyapplicable13regulations,thecharteringofafishingvesselbytherespectiveship-owner,toreplacethevesselwhichisbrokendownorinoperable.
ix.
Article67establishesthatonlyindustrialandsemi-industrialboatsoperatinginthenationalwatershavetobemarked.
x.
Article126providesthatrecreationalunderwaterfishersshall(b)Keepadistanceof30metresfromtheareainwhichthereisanotherpractitioner;and(d)Displayproofofphysicalfitnesstothatendbyshowinganadequatemedicalcertificate.
Additionally,article127regulatestheminimumagetogetthelicense:over18;diversbetween16and18cancarryouttheirdivingactivitywiththeauthorizationoftheirlegalrepresentatives.
Article128stipulatestheprohibitionoftheuseofanyfishinggearortoolwhosepropellingforceresultsfromthedetonatingpowerofachemicalsubstanceorfromartificiallycompressedgas.
Article129providesthattheuseofbreathingequipmentforskindivingorunderwaterfishingshouldbedonebypeoplehavingamedicalcertificateandadivingcoursewitharecognisedcertificate.
xi.
Articles145to148brieflyrefertotheAutomaticPositioningSystem,whichalthoughwiththeprimaryobjectiveofcontrollingthefishingfleets,alsohassafetyatsearelatedfunctions.
TheregulationwasdevelopedthroughaspecificMinisterialDiplomawhichprovidestheobligationofthecompaniestomaintainthesystem.
Articles149and150onradiocommunicationshavenotyetbeendeveloped.
xii.
Onsafetyduringfishingoperations,articles155and156providethatvesselsshalldisplaynavigationlights,flagsandballoonsrequiredbytheInternationalRegulationsforthePreventionofCollisionsatSea(IRPCS).
xiii.
Article201setsupthemechanismforconflictresolutionamongfishers,oneissuethathasbeenconsideredworldwideasapotentialcauseforaccidentsatsea(territoriality,relationsofcompetitionandevenconflictamongworkers).
ThearticleprovidesthatconflictsamongfishersnotifiedtotheMinistrywouldberesolvedbymeansofacommissionformedbythreeofficersoftheMinistryofAgricultureandFisheries.
xiv.
Lastly,articles104and105inDL6/2004envisagethattheMinistershallpromotethetrainingandcapacitybuildingoffishingofficersandinspectorsaswellastheconstruction,modernization,orrenovationmeasuresoffishingvesselswithaviewtocreatingamodernandcompetitivefishingfleetthatisadaptedtothefishingconditionsinthecountryandthatensuresefficiencyintheactivity,acceptableworkingconditionson-board,andimprovementinthequalityoffishingproducts.
2.
2GapsandconstraintsintheenforcementofthecurrentlegalframeworkAlthoughthereisspecificregulationonsafetyatsea,itdoesnottargetthesmall-scalefishingsector,whichemploysallthefishersinTimor-Leste(largercommercialboatsoperatingoutofTimor-LestedonotemployTimor-Lestenationals).
Moreoverthecurrentlegislationcontainsseveralgapswhichpreventactualimplementation.
Forthecertificateofseaworthiness,thefisherieslawdoesnotspecifywhichinstitutioncanprovidethiscertificate,northeeducationalortechnicalrequirementsoftheexpertswithauthoritytoprovidecertificationinthecountry.
Nofurtherlegislationhasbeendevelopedregulatingtheseaspects.
Thesameappliestotheconstructionofsemiindustrialandindustrialfishingvessels.
Althoughdetailedplansanddesignbriefsofanyconstructionormodificationsarerequired,thetitleortechnicalbackgroundoftheauthor(s)oftheplansarenotspecified.
Atthemomentthesedocumentsareonlyrequestedforforeignboatsasthereisnocompanyorinstitutioninthecountryissuingthesedocumentsorprovidingtherequiredservicestoconductthisprocess.
RFLPFieldProjectDocument2012/TIM#5SAFETYATSEAASSESSMENTINTHETIMOR-LESTESMALL-SCALEFISHERIESSECTOR1414CurrentlySOLASandNON-SOLAS4arethemainexistinglawsinTimor-Lestewhicharerelevanttosafetyatsea.
However,theyweredesignedspecificallyforcargoboats.
NONSOLASisbeingappliedforfishingvesselsoperatinginports(industrialboats)intheabsenceofanyotherregulation,whenitcomestospecificsystemsofcommunicationandsafetycontrol.
HoweverNONSOLASisnotanapplicablelegalframeworkforfishingvessels.
ThecurrentdevelopmentofnewportslegislationprovidesanopportunitytolinkandshareresponsibilitiesincoordinatedwaybetweentheNDFAandthePortAuthorityofTimorLeste(APORTIL).
Fortheinspectionoffishingboats,thelegalproceduresfortheissuanceoffishinglicensesaretheresponsibilityofthestaffoftheNationalDirectorateofFisheriesandAquaculture,DepartmentofInspection.
Ithastobetakenintoaccountthatmostofthefishingfleetiscomprisedofsmallwoodencanoes.
Inthiscase,avisualinspectionoftheconditionoftheboatsissufficient.
However,thelegalframeworkisnotspecificwhenitcomestotheitemstobeconsideredwhenconductingaboatinspectionthatneitherregulatestheminimumtechnicalbackgroundoftheinspectors,whocurrentlylackthespecifictechnicalknowledgetocarryouttheinspectionofasemioranindustrialfishingboat.
Thesameappliestotheinspectionsdescribedinparagraphviiabove,relatingtoforeignfishingvesselscharteredbynationals.
Theclassificationofthefleetiscomplex.
Theartisanalfleetcanbeeitherbeclassifiedassubsistence(andassuchregulatedundertraditionalcommunitybasedmanagementsystems)orcommercial.
Anartisanalboatcanbedefinedasbeingcommercialwheneverthe"traditionalvessel"ispropelledbymechanicalmeans,i.
e.
ismotorized.
Artisanalboatsarecurrentlydefinedunderthreecriteria.
Nevertheless,thedefinitionofthesemi-industrialandindustrialfleetsisbasedonalargenumberofcriteria.
Asaresult,thedefinitionsareunclear,andapartofthefleetremainsundefined,fallingbetweenclassificationcategorieswithanumberofboatsfittingsomeofthecriteria,butnotothers.
Asaresultofthisinaccuratescheme,anumberofboatswhichcanbeconsideredtobebelongingtoamedium-scalefishingfleet(mostlybasedinAtauroisland)fallintotheartisanalfishingboatcategory,andassuchsomeimportantsafetyatseameasuresdonotapplytothem(seeparagraphsiii,ivandviabove).
Currently,giventhecomplexdefinitionofthesemi-industrialfleetunderthelaw,therearenoboatsatalllicensedunderthiscategory.
Theminimumskillsrequiredbyskippersandoperatorsarenotadequatelydefined.
Article20DL6/2004onlyregulatestheobligationsofthebeneficiariesoflicensesandarticle27theirresponsibilities.
Promotionoftrainingandcapacitybuildingareenvisaged,buttheareasofcoveragehavenotyetbeendeveloped5.
Ithastobenotedthatcurrentlythereisnoinstitutioneitherprovidingorthatcouldprovidespecificcoursesforskippersonnavigationrelatedissues.
ThenewlyplannedFisheriesTechnicalSchoolthatisplannedfor2014canserveasasuitableplatformforthefurtherdevelopmentofofficialcapacitybuildingprogrammeslikethis.
Oncesetup,somesubjectsshouldbearecommendedrequirement6fortheoperationofatleastpartofthefleet.
Ifthesubjectsaretobecomemandatory,thecontentsorrequirementsfortheiracquisitionmustbesimplified.
FinesforinfractionsareregulatedunderMinisterialDiploma06/42/GM/II/2005andarticle175DL6/2004.
Noneofthemmentiontheamounttobepaidfornothavingtherequiredsafetyequipmentonboardandingoodconditionforuse.
However,asitisarequirementfortheissuanceofafishinglicense,4Decree-LawNo.
4/2003of10Marchontheestablishmentoftheminimumsafetyandregulationrequirementsapplicabletocargoshipsnotcoveredbythe1974SOLASconvention.
5AHumanResourcesDevelopmentPlanfortheNDFAhasbeendeveloped(Fernández,Aguado,&Ramos,2011)withaspecifictrainingplantoguidecapacitybuildingefforts.
6FishersinTimor-Lestehavegenerallylowlevelsofliteracy,thereforemakingtraininginspecifictopicsamandatoryrequirementcouldmakemanyfisherslegallyunabletooperatetheirboats.
15itfallsunderarticle2oftheMD06/42/GM/II/2005.
Basedonthislaw,small-scalevesselsarenotrequiredtohaveanyspecificequipmentforeithercommunicationorgeographicpositioning.
Theconstructionrequirementsdonotsetanysafetymeasuresforsmall-scalefishingboats.
Contrarytothis,semi-industrialvesselshavetobeequippedwithemergency,communicationandgeographicpositioningequipment(seeparagraphiiiabove);however,thearticlesregulatingthesafetymeasuresforsemi-industrial/industrialvessels,referto"appropriatelegislation"or"maritimelegislation"thatstipulatetherequirementsforthisequipment.
Additionally,giventhecomplexcriteriabywhichthetypeofvesselisdefined,therearecurrentlynosemi-industrialvessels,aspointedoutabove.
Anyplanningforanyfurtherregulationofsafetyatseaequipmentrequirementsforthesmall-scalefishingsub-sector,hastotakeintoaccountthatthemajorityoffishersinTimor-Lesteoperatewithinafewkilometresofthecoastinsmallcanoes.
Anysafetyrequirementregulatedbylawhastotakeintoconsiderationthecharacteristicsofthefleet(spaceavailable,capacity,etc.
)andtheincomeofthefishingfamilies7.
Itshouldbenotedthatwhilemostfishingoperationsoccurneartheshore,themajorityoffishersareunabletoswim.
Additionallythemaincausesofaccidentshavetobeconsidered,includingbadstowageandoverloadingofvesselsandbadweather.
Inaddition,crocodileattacksarethemaincauseofaccidentsatseaandontheshore(mainlyinthesouthernsea–seePartIIIofthisdocument)8.
AscrocodilesplayanimportantroleinTimoreseculturetheimportanceoftakingintoaccountlocalsystemsofmanagementandculturalbeliefs,mustalsobehighlighted.
TheprocessofobtainingafishinglicenseinTimor-Lesteislong,complex,andinvolvesmanysteps.
FirstafisherhastotraveltothecapitalDiliandcompleteandsubmitaformwithdataonhis/hervesseltotheFisheriesInspectionDepartmentoftheNDFA.
Oncesubmitted,astaffmemberfromtheFisheriesInspectionDepartmentoftheNDFAhastotraveltothefishersvillageandconfirmtheboatspecifications,againstthoseonthecompletedNDFAform.
ThereafterthefisherisgivenaninvoicebytheNDFAsLicensingSectionwhichs/hehastotaketothebank,andpaythecorrespondingfee.
Asmostfishersareilliterateandhaveveryfewyearsofformaleducation,mostrequirehelpinordertocompleteboththeNDFAandbankingforms.
ThefishermustthentakeproofofpaymentdocumentationbacktotheNDFA.
Thefisherthenhastowaitforthelicensedocument,whichhastobesignedbytheNationalDirectoroftheNDFA.
Thisprocessmeansdaysoflostfishingandincome,incurssignificantexpenditureincludingtransportforatleasttwotripstoandfromDiliandthecoastalfishingvillage,andprobablyfoodandothercostsforatleastthreetofourdays(twotothreenights)inDilistayingwithrelativesorfriends.
Typicallythisprocesscantakeatleastonetotwoweeks.
In2011-12theRFLPsupportedtheFisheriesInspectionDepartmentoftheNDFAtofromaone-stopmobilelicensingteam9whichtravelledtoallcoastalcommunitiesinTimor-LesteandprovidedlicensingandregistrationservicestakinglessthantwohoursandcostingonlyUSD5(theannuallicensefeeonly).
ThefirstnationalcensusoffishersandfishingboatswascompletedinNovember2012andthedataispublicallyavailableatwww.
peskador.
orgunderthesection"Listaroo/Boatlist".
ItshouldalsobetakenintoaccountthattheTimoresefisherieslawswereoriginallywritteninPortuguese,makinginterpretationdifficultnotonlyforfishers,butalsoforfisheriesplannersandmanagersbecausefishersandevenNDFAstaffhavelimitedknowledgeofthislanguage.
TranslationintoTetumpresentsmanyshortcomingsandasaresultmanyNDFAstaffhavehaddifficultiesinfullyunderstandingthelegalprovisions.
Toaddressthisin2011theRFLPdevelopedatechnicalandalegalglossaryandprovided7Foranestimationsee(AMSATInt.
,2011).
8SeetheonlinedatabaseofaccidentsatseadevelopedbytheRFLPaswellasthe"Dangerousplaces"mapathttp://peskador.
org/.
9Forfurtherinformationsee:http://www.
rflp.
org/sites/default/files/Fact_sheet_mobile_licensing_service.
pdfandhttp://www.
rflp.
org/timor_leste_censusRFLPFieldProjectDocument2012/TIM#5SAFETYATSEAASSESSMENTINTHETIMOR-LESTESMALL-SCALEFISHERIESSECTOR1616specifictrainingcoursesontheiruseforNDFAstaff(Alfaiate,2011).
ThereafterateamwasestablishedwhichtravelledarounddistrictsofTimor-LesteraisingNDFAstaffandfisherawarenessonthemainlegalprovisionsaffectingtheirdailyworkingoperations.
SpeargunfishingisawidespreadlivelihoodamongfishersinAtauroandDili.
ThiskindoffishingisaccomplishedonaregularbasisinawideareathatcannotberealisticallycoveredwiththecurrentNDFAstaffandbudgetmeanseveniftherewasalargeinvestmentinhumanandmaterialresources.
Itisthereforeunrealistictotryandregulatetheminimumdistancebetweendiversfishingatsea.
Similarlimitationsoccurwiththeapplicationofthevesselmonitoringsystems(VMS)regulationsorwiththecontroloffishinginthedifferentareasestablishedbylaw.
VMSsystemsareexpensiveandunaffordableforfisheriesauthoritiesinTimor-Leste.
Furthermoretheyareintendedtotracklegallylicensedboats,creatingaboundarybetweenthosewhocontrol(state)andthosewhoarecontrolled(fishers),insteadofcreatingeffectivepartnershipsbetweenstateinstitutionsandtheproducers,whohavealsoaninterestinkeepingdestructivefishingoutoftheirwaters10.
Althoughthelegalprovisionsestablishthatonlythesemi-industrialandindustrialfleethastobemarked,theNDFAsFisheriesInspectionDepartmenthasgoneonestepfurther.
NDFApolicyhasbeentoalsomarkthesmall-scalefleet,includingsmallpaddledvessels,classifiedinthelawassubsistencefishing.
ThispositivemovementhasprovidedforthefirsttimeanincreasedknowledgeofthestructuralcharacteristicsofthefishingsectorinTimor-LesteandhasbeenusedtodevelopthefirstNationalCensusofFishersandBoats.
However,thisinitiativehasnotbeenaccompaniedbyarevisionofthelegalframework,indicatinghowinsomecasesfisheriesplannersareaheadoftheprocessoflegalframeworkadaptation,whichisaslowprocess.
ThisisseverelyconstrainedbythelackofspecializedstaffprovidinglegalsupporttotheNDFA,andthelimitedhumanresourcesincountrywiththecapacitytoprovideadviceonmaritime/fisherieslegalissuesinTimor-Leste.
Insummary,currentTimor-Lestefisherieslegislationneedstobeadaptedtotheactualsituationonthegroundandtheneedsofthefishingsectorincountry.
IntherecentlyreleasedStrategicDevelopmentPlan(2010-2030)(RDTL,2011),thegovernmentofTimor-Lestehasexpresseditsaimofdevelopinganindustrialfleet.
However,thiswillrequireahugeefforttoensurethatthefleetcapacityandeffortisbasedontheabilityofaquaticstockstosupportsustainableharvestingthroughimplementationofanappropriateresourcemanagementsystem.
ThecurrentfisherieslawsareforthemostpartimportedfromothernationsandignoretheNDFAhumanresourcesandbudgetlimitations,andtheactualcharacteristicsandidiosyncrasiesoftheTimoresefisheriessector.
Furthermoretheapproachtofisheriesresourcemanagementhasbeenrestrictiveandistopdowninnature.
Itisaimedatcontrollingandpunishingfishersandpayslittleattentiontoinvolvingthemandtheirorganizationsinthesustainableco-managementoffisheries.
Awiderangeofdocumentationfromdevelopedanddevelopingcountrieshasshownthatanylegalframeworkaimedatensuringsustainabilityofresourceuseshouldtakeintoaccounttheviewsandneedsofendusersandstakeholdersandbringthemonboardindecisionmakingprocesses.
Additionally,anylegalframeworkwhichcharacterizesasignificantpartofthefleetasillegal,andignoresoromitsproductivepracticesortraditionalformsofexploitationandmanagementofthenaturalresourcesactuallydeployedbytheresourceusers,hasthepotentialeffecttoallowabusesofauthorityanddelegitimizestheapparatusofthestate.
AnewstatelikeTimor-Lestehastheopportunitytolearnfromtheexperiencesofothercountries,andinthisprocessabestpracticewouldbetoproduceoriginallegalframeworksadaptedtothestructuralconditionsofthesectorandwhicheffectivelyincludesfishersinmanagement.
Theseshouldalsoapplytolegalprovisionsonsafetyatsea.
10Seehttp://www.
rflp.
org/sites/default/files/Fishers_patrolling_Timor_Leste_waters.
pdf173.
PARTII.
VESSELASSESSMENT3.
1BackgroundinformationLittledocumentationisavailableonthetechnologicaltransformationsthathaveoccurredintheTimor-Lestefisheriessectorduringthelastdecades.
Basedonavailablesources,itseemsclearthatthemostrecentandimportanttransformationswereconductedduringIndonesianoccupation(1975to1999).
Previously,duringthePortuguesecolonialperiod,availabledocuments(Figueiredo,1966,1968)reportthedominanceofboatspoweredbysailsandpaddlesallaroundtheisland.
A1968report,statestherewereonlythreemechanizedboats,while175sailorpaddleboatswererecorded11.
PortuguesedocumentshighlighttheimportanceoffishinginAtauro,whichwaspresentedasthemainfishingcommunityinTimor-Leste,wherethemostskilledboatbuildersresidedandworked.
Ataurofishershavealongboatbuildingtradition,constructingbothsmallcanoesaswellasboatsforfishingandtransportationthatrevealseafaringnomadismpractices.
TodayAtaurocontinuestobethemostimportantfishinglocationandpopulationinTimor-Leste.
TheIndonesiancolonizersbegantheprocessoftransformingthesector.
Duringtheiroccupation,sailswerealmostcompletelyreplacedbyenginesandnewfishingtechniqueswereintroduced.
Cooperativeswerepromotedandbiggermechanizedboatsandnewfishingtechniquesenteredthefishery.
CurrentlytherearefewremnantsoftheIndonesianattemptsatmodernization.
Thecooperativesfailedforthemostpart,muchofthedonatedequipmentfelloutofuseandthefisheriesinfrastructurewasburnedordestroyedatthetimeoftheIndonesianwithdrawalin1999.
Furthermore,ithasbeenreportedthatthenewlyintroducedtechnologieswerenotusedforthemostpartbyTimoresecrews(MAF,2001),butbyIndonesiancrewsthatweremovedtoTimor-Lesteasmanpower.
TheforcedmovementofpeoplefromonesettlementtoanotheraswellastheinducedmigrationofinhabitantsfromotherislandstoTimor-Lesteresultedinsomecoastalpopulationswithfewpeoplethatwereformerlyfishersenteringthefisherysectorandlearningnewfishingtechniquesimportedfromneighboringislands.
Oftheinnovationsintroducedsomewereadopted,butotherswerenot.
Basedontherecollectionofelders(Alonso,2009)drift-netswereintroducedatthistimeandtodaythesearethemainfishingtechniqueusedalongthecountryscoast.
Additionallysomeboatbuilderslearnednewtechniquesandsailsalmostcompletelydisappeared.
Despitethis,todaythefishingsectorisnotdissimilartowhatitwasduringthePortugueseperiod.
Nowthemajorityofthefleet(around60percent)iscomposedofsmallwoodennon-motorizedout-riggercanoes.
Theremaining39percentfromatotalof3,034vesselsin11Thesenumberscorrespondonlytothelicensedboatsandwereestimatedtorepresent1/3ofthetotalfleet.
ThepaymentoflicensesfeeswascommonduringthePortugueseperiod.
Box1.
DeclineintheuseofsailsAtaurointhe60s.
Photo:S.
Pereira.
Downloadedfromhttp://www.
geocities.
ws/diak_liu/index5.
htmlSmallcanoeforfishingalonepoweredbysail.
Onlyfewsmallboatslikethisremainusingsailsdespitethecostoffishingoperationswouldbeconsiderablyreducedwiththeiruse.
RFLPFieldProjectDocument2012/TIM#5SAFETYATSEAASSESSMENTINTHETIMOR-LESTESMALL-SCALEFISHERIESSECTOR1818country,alsowoodendugoutsforthemostpart,aremechanized,butthetotalfishingcapacitystillremainslow.
3.
2SpecificobjectivesRFLPsupportedtheNDFAtoconductanassessmentoftheTimoresefishingfleet.
Thespecificobjectivesofthevesselassessmentswereto:DocumenttechnicalaspectsofthecurrentsafetyatseasituationinTimor-LestethatwerenotcoveredbytheRFLPbaselinesurvey.
ProvidebasicinformationonthecurrenttechnicalcharacteristicsoftheTimor-Lestesmall-scalefisheriessectoronconstruction,maintenanceandrepairaswellasthestatusofthefleet.
Analyzeandassessthesuitabilityoftheintroduction,productionandhand-overoffibre-glassboats.
Identifygoodboatbuilderscurrentlyavailableincountry.
Comparevessels,materialsandconstructionalternativesfeasibleandavailableinTimor-Leste.
Providerecommendationstoguideplanningandimplementationpurposes.
ToimprovethecapacityoftheNDFAtechnicalstaffondesignandconstructionassessmentsoffibre-glassboats,thevesselassessmentwasconductedwiththeparticipationofstafffromthetechnologysection,oftheDepartmentofFishingIndustryoftheNDFA.
SomeoftheresultswereintegratedintoseveralawarenesscoursesonsafetyatseaconductedbytheNDFAwithRFLPsupportduring2011and2012withtheobjectiveofimprovingvesselusersafety.
3.
3MethodologyVesselassessmentswereconductedatthefollowinglocationsanddates:TutualaandCom,LautemDistrict,October2010.
VemasseandWataboo,BaucauDistrict,December2010.
FourvillagesoftheAtaurosub-district,from11-15January,2011to26-30June,2011.
TheassessmentwasorganizedbyRFLPwiththeassistanceoftheAtauro,BaucauandLautemDistrictFisheriesOfficers(DFO),aswellasotherselectedstaffoftheNDFA.
TheNDFAstaffweregivenboththeoreticaltrainingandpracticalon-the-jobvesselassessmenttrainingusingsimplemethodsthattakeBox2.
MethodsusedintheassessmentPhoto1.
TrainershowinghowtousetheprofilescannerPhoto2.
Measuringtheangleswiththeprofilescannerandthegraduator.
StaffoftheNDFAlearnedtheevaluationtechniquesinordertoapplytheminthefuturePhoto3.
TakingnotesofthemeasuresPhoto4.
SpeedometersinstalledinthetestboatPhoto5.
Conductingthespeedassessment.
TheboatdelineatesanS-shapecourse,doingazig-zagbetweenthefloatingmarkers19intoaccounttheconstraintsinfacilities,thelimitationsonequipmentavailableandthetechnicalcapacityoftheNDFAstaff.
Thefollowingvesselassessmentmethodsweretaughtandused:1.
Vesselmesurementusinga.
Tapemeasure,b.
Graduator,andc.
Profilescanner.
2.
Measurementofmaximumandaveragevesselspeedsusingaspeedometer.
Inordertodothis,fivebuoysweresetupeverytenmetres.
3.
Aspeedometerwasusedtocalculatethemaximumandaveragesspeedsofeachcourse.
Averagesoftencourseswerecalaculated;foreachcourse,weightswithinthevesselweredistributedindifferentways.
4.
Relationshipboat/engine.
Atachometerwasusedtochecktheenginerevolutionsperminute(RPM).
TherelationshipbetweenthevesselvelocityandtheRPMs,givesanindicationoftheappropriatenessofaparticularsizedenginetoaparticularsizedboat.
5.
Stabilityassesment.
Agroupoffourtechnicalstaff(sometimesincludingthevesselowners)operatedthevesselduringthisassessment.
Toevaluateboatstability,theparticipantofficersandboatownersweredistributeddifferentlyforeachcourserunbytheboat.
Fourdifferentarrangementsofthepeopleontheboatwereconductedforeachstabilitytest,asshowninFigure1below.
Anexternalobserveronanotherboatobservedboatstabilityanditsresponsetothedifferentpositioningofthecrewontheboat.
Theexternalobserverfindingswerecross-checkedwiththoseofthecrewonthetestboat.
6.
Howtheboatcutsthoughthewaveswasalsoanitemintheassessment.
Thedegreetowhichtheboatcutsthroughorridesoverthetopofthewaveswasobservedbythecrewmembersandtheexternalobserver,whoexchangedrolesduringthistest.
AllvesselstestswereconductedusingthesameYamaha15HPengine,whichisanenginetypewidelyusedbyTimoresefishers.
ThemaximmumRPMofthisspecificbrandandmodelis5,000.
Themaximumspeedwascheckedforallboatstestedatthismaximum5,000RPM.
Itisimportantthattheenginesizeisappropriateforaparticularboat.
Whereanengineisunder-sizeditiseasytolosecontrolandthemayevenbedamaged.
7.
Duringtheassessment,boatownersandoperatorswerealsointerviewed.
Visualobservationsweremadeofthecurrentboatstatusandstructuralandmaterialdamageaswellasdesignfaultswererecordedandphotographed.
Figure1.
ThecrewwasunevenlydistributedintheboatduringthecoursesinordertocheckthestabilitywiththeassistanceofanexternalobserverRFLPFieldProjectDocument2012/TIM#5SAFETYATSEAASSESSMENTINTHETIMOR-LESTESMALL-SCALEFISHERIESSECTOR2020Twentywoodencanoeswithoutoutriggersandtwentyoutriggercanoesaswellasthreedifferentdesignsoffibreglassboatsweretestedandassessed.
SeeBox3forexamplesofthewoodencanoetypesassessed.
Themodelswereselectedgiventheirwideavailabilityincountry.
ThoseselectedweremadebytwodifferentbuildersfromAtauro,wherethebestwoodenboatbuildersinTimor-Lestearebased.
BoatswithoutoutriggersareconstructedinWaroana-northeastAtauro(someareboughtandimportedfromIndonesia,mostlywithin-boardengines),whilethosewithoutriggersarebuiltbothinnorthaswellasMakili-southAtauro.
Inbothcases,therewasastrongtraditionofboatbuildingbeforetheIndonesianoccupation;howeverinbothcasesboatbuildersadoptedtechniquesimportedbyIndonesianboatbuildersduringtheoccupation.
Severalfibre-glassboatswerealsotested.
Thisreportonlyassessedboatsdelivered/donatedbystateinstitutions.
Themaintwomodelsdonatedbythegovernmenttofishersarethe2008Nautilusandthe2009-2010model,calledTuna.
SeeBox3forexamplesofthefibre-glassboattypesassessed.
Othertypesoffibre-glassboatsareoperativeinTimor-Leste.
AmongthemtheromponboatdeliveredbytheSpanishNGOPazyDesarrollotofisheriescooperativesandtheIkueioverseasproducedfibre-glassboatsnamelythemodel2003-2007thatcanbefoundmostlyinTutualaandanimprovedmodel2007-2009.
Noneofthemwereincludedinthisboatassessment,asonlyalimitednumberofthemexistandtheiravailabilityforpurchaseisverylimited.
3.
4SummaryofassessmentWoodenvesselswithoutoutriggersWhileonthemainislandofTimor-Lestemostsmallcanoeshaveoutriggers,inAtauroitiscommontoseelongcanoeswhicharenotequippedwiththem.
Thissectionsummarizestheassessmentofsomeoftheseboats,whicharemostlyconstructedbyboatbuildersfromthenorthernsideofAtauroIsland.
Box3.
TypesofboatstestedWoodencanoewithoutoutriggerWoodencanoewithoutriggerNautilusmodel2008Tunamodel2009-2012Box4.
WoodenvesselsfromNorthAtauroWoodenboatinAtauro,Bikeli.
Presentsashallowfreeboard(only5cmfromthewaterline).
Stemshapedinclipperstyle.
Localwoodenboatunderconstruction.
Thebottomisbuiltfirst;thenthehull/bodyisadded.
Keel,framesandhorizontalreinforcementbarsareaddedattheend.
Boatbuildershapingtheframesofawoodenboat.
Arecentdevelopmenthasbeentheincreasinguseofelectricalequipmentsuchassandersbyboatbuilders.
Nevertheless,machetesarestillthemostcommontoolintheconstructionofvessels,especiallywhenitcomestoboatsbuiltbyfishersthemselves.
Plainroundedshapedtransom21MaterialsFormerlyboatbuildersobtainedtheirtimberfromlocalforests(mostlyAi-mutin,EucalyptusalbaandAinaar,Pterocarpusindia/Indianrosewood),butasregulationsontheuseoflocalwoodhavebecamemorerestrictive,vesselstodayarebeingmadefrommaterialsimportedfromneighbouringislandsofIndonesia.
Despitethis,woodisstillthecheapestandmostavailablematerialforboatconstruction.
Steelisusedfornails,boltsandnuts.
Stainlesssteelnailsandboltsarebothdifficulttofindincountryandwhenavailableareexpensive.
Forcaulkingofjoints,epoxyandstringarethemostcommonlyusedmaterials.
DesignandconstructionmethodsBoatbuildersdesignboatsbasedontheirpreviousknowledgeandtechniqueslearnedfromIndonesianboatbuilders.
Thesevesselsareconstructedwithaclipper-typebowstemandaplain-flattransomwithinaroundedshapedsternwhereitiscommontofinda15HPYamahaengineattached.
Thefinalshapeofthehulldependsontheselectedwoodentrunkusedforconstruction.
Thisboatoffersashallowfreeboard,whichconstrainsuseinroughwaters.
Suchboatsareusedforfishing,butalsoforthetransportationofpeopleandgoods,mostlyaroundAtauroandtoandfromDili.
Duringtheassessment,RFLPstaffandNDFAtechnicalstaffvisitedtwolocalboatbuildersinBiqueliandWaro-anawhoconstructthistypeofboats.
Noneoftheboatbuildersconsultedusedanynumericmeasurementorcalculateddesign.
Rathertheirboatdesignandconstructionwasbasedonknowledgeacquiredandobservationsmadeovermanyyears.
Logsareeasytobuyandtransportfromnearbyislands,howevertheirpriceishigh.
Howevertheuseofimportedlogsmakesthese7to10metresboatsexpensivetobuild,rangingfromUSD2,000to3,000.
Thepricevarieswidelydependingnotonlyonthematerials,butalsoontheclosenessofthefishersrelationship(kin,neighbours,etc.
)withtheboatbuilderandthepersonwhosellsthelogs.
Woodenboatconstructiontypicallybeginswiththekeelandframes;howeverthelocalboatconstructionmethodischaracterizedformodellingfirstthehull.
Dependingontreetrunklengththehullismadefromasinglepieceofwoodmadefromhollowingoutthetrunk.
Afterwardsthehollowedouttrunkhullisreinforcedwithframesandakeel.
Thistypeofboatconstructionposesimportantlimitationsforboatmaintenanceanddurability.
Oncethemainhollowedouttrunkonwhichtheremainderofthevesselisbuiltbecomesdamagedorcrackedduetohumiditychanges,saltcorrosion,temperaturechangesandthepassageoftime,theboathastobedisposedof.
Forsmallerboats,fishersareusuallyabletofixthecrackswithapastemadefromamixtureofpetrolandpolystyrene,howeverthisrepairisonlyatemporarysolution.
Onlytheboatpartsthatareattachedtothemaintreetrunk(freeboard),includingalsothemainframesandthekeel,canbedisassembledandreplacedwhendamaged.
Someboatbuildershowever,usewoodenpanelstoconstructthehull.
Thisismostlythecasewithbiggerboatsofthistype(morethan8metresinlength,althoughthisdependslargelyontheboatbuilderandthebudgetofthefinaluser).
Thisconstructiontypeprovidesadvantages,asbrokenordamagedpanelscanbeeasilyreplacedifdamaged.
Duringseatestsitwasreadilyapparentthatsomeoftheassessedwoodenvesselswereunstablebecausea)theboatdesignhasinsufficientwidth,orb)thevesselsbottomwastoonarrow,beingshapedinaV-style.
Duringtestruns,theinspectorsandoperatorswerebarelyabletochangetheirpositioninsidetheboatgiventhelowlevelofboatstability.
RecommendationsforboatbuildersandusersInordertoensurevesselstrength,boatbuildersshouldconsideraddingreinforcingmaterialsandmethods.
Theconstructionofthehullinpiecesisrecommendedforbothlongerandsmallerboats.
AlthoughitRFLPFieldProjectDocument2012/TIM#5SAFETYATSEAASSESSMENTINTHETIMOR-LESTESMALL-SCALEFISHERIESSECTOR2222wouldbedifficulttochangethebottomshapemadebyasinglehollowedouttreetrunk,itisstronglyrecommendedthatmoreboltsandnails(preferablyofstainlesssteel)areusedwhenattachingtheframestothemainbodyoftheboatsbase.
Framesandhorizontalreinforcementbarsmustbeboltedtogether.
Wherestainlesssteelisunavailable,itisrecommendedthatthesteelforbothin-boardandout-boardsispaintedwithanti-rustpaint.
Knowledgeofboatusersofthevesselscentreofgravity,stabilitycharacteristicsaswellasmaximumsafeloadswouldprovideimprovedsafetyforboatusers.
Themainchallengeforthisisthehighrateofilliteracyamongboatusersascalculatingthemaximumsafeloadsinvolvescomplexcalculations.
Asimplemethodtoindicatethemaximumweightaboatcancarryshouldbetested.
Boatbuildersforexamplecanbeequippedwithsimpletemplateswithwhichtheycanpaintthemaximumnumberofpersons(asintheelevators)thatcanbetransportedintheboatbeforetheyaredelivered.
Inthatwayboatuserswillbeabletheestimatethemaximumweights,avoidingoverloading,whichisamaincauseofaccidentsatseainTimor-Leste(seePartIIIinthisreport).
Furthermore,theinstallationofoutriggersonthesevesselsishighlyrecommendedinordertoimprovestability.
OutriggerwoodenboatsManydifferentkindsofoutriggerscanbefoundalongthecoastofTimor-Leste(seeBox6.
Typesofoutriggercanoe).
Mostofthemareconstructedfromasinglepieceofwood,othersbearwoodenpartsattachedtothemainwoodenhullasinthecasedescribedabove,whileotherscompriseahullconstructedfromdifferentwoodenpanels.
Theoutriggerwoodencanoestestedweremainlyofthethirdtype,whichisamorecomplexandbetterconstructiontechnique.
MaterialsMaterialsusedarethesameasthewoodenboatsdescribedabove.
Fortheconstructionoftheskids,bambooorpolyvinylchloridepipes(CVP)areused,attachedwithnylonropestothewoodencrossbarpolesthatareattached(alsowithnylonropes)tothemainboatbody.
Woodprovidesanadvantagewhenitcomestofloatationbutitrequiresregularmaintenance,suchascaulking(fillingthegapsbetweenthewoodenpanelsandparts)andre-painting.
Duringthisassessment,itwasidentifiedthat17boatsoutofthe45vesselssurveyed,neededrepairing(37percent).
Manyofthebrokenvesselsweredamagedbecauseofthelackofpropermaintenance.
Thiswaseitherbecauseoflackofknowledgeofboatownersoftheimportanceofre-paintingorbecausetheyBox5.
BuburboatsfromMakiliBuburboatconstructedinthetraditionalway.
Freeboardconstructedwithpalmleaves.
Doublearrowshapedendswhichlocallysymbolizeslineagesystemobligations.
Bigsinglebuburtrunkboatwithpanelsattachedforfishingandwithnoframes.
Thephotoshowsthestructureusedtotransportalargefishtrap.
TraditionalbuburtrapfromMakili,SouthAtauro23lackedfundstoconductregularmaintenance.
Itwouldappearthatthelifeofwoodenboatsisveryshortanditcanbeestimatedthatwoodencanoesmadeofasingletreetrunkonlylastforamaximumof4to5years.
Durabilitydiffersbetweenboattypeone(seeBox6),whichcanbeliftedoutofandcarriedfromtheseawithoutbeingdraggedandboattypetwothathastobedraggedfromtheseaasthisresultsindamagetothebaseoftheboattrunk.
However,boatsconstructedusingpanelswhichcanbereplacedusuallylast5to7years.
Thepriceofatypetwodugoutcanoeof5–7metresusedwithanoutboardengineoralongtail12isaboutUSD350to500.
However,thepriceofagoodoutriggercanoeoftypethreeconstructedwithpanelsisaboutUSD2,500-3,000.
DesignAsinthecaseofthewoodencanoesintheprevioussection,boatbuilderswhoconstructthetypethreeoutriggerboatsdescribedinthissection,basetheirskillsonknowledgegainedfromspecificprogrammesduringtheIndonesiantime.
Meanwhile,thefirstandsecondtypeboatdesignsarebasedalmostentirelyonlocallyinheritedknowledge.
Thereareasmanytypesofoutriggercanoesasthereareboatbuilders.
Takingintoaccountthatmostofthetypeoneandtwocanoesareshapedbytheirownfishers,itisnotsurprisingthatthereisanenormousvariabilityincanoeshape.
Variationsarenotonlyfounddependingonlocation,butalsowithinlocations,astheshapeofbowsandstemsserve,likecolours,asamarkerofhouseholdorgroupidentity.
Furthermoreitshouldbenotedthatallthesedesignsarerestrictedbytheshapeofthewoodentreetrunkwhichformsthebaseofallhollowedoutcanoes.
Thepaddlecanoeslistedastypeoneareshapedatbothends;someofthemarefittedwithsmallskidsorlongitudinaloutriggers.
Fishersusingthistypeofboatrestricttheirfishingactivitiestowithinafewhundredmetresfromtheshore.
Theseboatsareusedforfishingwithhand-lines(trawlingandbottomfishing)inthereefareasaswellasthedeploymentofshortnetsforsmallpelagicfish,suchassardine.
Whenabigtreetrunkisavailable,longboats(upto7-8metres)propelledbyoutboardenginescanbeconstructedwithpanelstoraisethefreeboard(type2).
ThecostofasmallpaddlecanoecanbearoundUSD100andalongerboatmadeofonesinglepieceofwood12LocallyreferredtoasKetingting.
Therearelargedifferencesinpricesfortheseengines.
Themostwidelyavailable(anddeliveredbythestateinstitutionsanddevelopmentactors)Yamaha15HPcostaroundUSD3,000,whileaketingtingcostsbetweenUSD450(3.
5HP)andUSD600(5.
5HP).
Box6.
TypesofoutriggercanoeTypetwo.
Boatmadefromasinglepieceofwoodwithpanelsattached.
Thesimplestandcheapestversionofthisboatiswithoutframes(left-Liquia),althoughsomearereinforcedwithframes(right-Atauro)Typeone.
"Ro'okik",madebyasinglepieceofwoodwithpaddles.
Withsmalloutrigger(front)andwithoutoutrigger(back)Typethree.
BigoutriggercanoesbuiltinSouthAtauroforfishingandtransportationofpeopleandcommoditiesmostlyfromandtoDili.
Thehullisconstructedwithwoodenpanelsandreinforcedwithframes.
Ithasawoodenstructuretoprovideshade.
TransportationofcommoditiesisaprofitableactivityandithasbeenreportedthatmanyfishersfromMakilinowadayshaveshiftedfromfishingtotransportation.
Thephotorevealsagoodlevelofboatmaintenancewithrecentpaintingandnewropesusedforlashingtheskids.
Thisboatisstableandthedesignisappropriate.
RFLPFieldProjectDocument2012/TIM#5SAFETYATSEAASSESSMENTINTHETIMOR-LESTESMALL-SCALEFISHERIESSECTOR2424canbearoundUSD200.
InMakili,traditionalsingle-trunkboatswiththefreeboardmadewithpalmleavesarestillinuseforfishingusingbubuorbubur,atraditionalbigtrapwhichcatchesvariousspeciesofsmallreeffish.
Inotherareasthesesmallboatscanstillbefoundpropelledbysmallsails.
Themainriskfacedbyfishersusingsmallpaddlecanoesisattackbydangerousanimalssuchascrocodiles.
Canoeswithoutoutriggerareparticularlyunstableanditiscommonthatfishersdontknowhowtoswim.
Thetypetwocanoes,whichareusuallypoweredby5.
5HPlongtailengines(ketingting)or15HPoutboardYamahaengines,aretoppedwithwoodenpanelswhichraisethefreeboardandtransom.
Themoresimplemodelsofthistypetwocanoe,whicharethemostcommonlyfoundcanoealongthecoastofTimor-LestehaveatotalcostofaroundUSD250andarenotreinforcedwithframes.
Astheyarebuiltfromasinglepieceofwood,theypresentthesameproblemsofmaintenancementionedabove.
Theyaremainlyusedforfishingwithhand-lines,bottomlonglinesorgillnet(driftnets),targetingsmallandmediumpelagicfish.
Thecatchoflargepelagicfishisrestrictedbythecapacityofthecanoes.
Longernarrowshapedboatswithacrewofabout10arealsobuilttofishatfishaggregatingdevices(FADs)calledrompon.
Purseseinesarecurrentlybeingintroducedinseveralareasofthecountryandthenarrowcanoeshapemakesraisingthenetdifficult.
Forthetypetwocanoeitiscommontofindthecanoereinforcedwithframesandhorizontalbarsattachedtothehullwithonlyafewnails.
Insuchcases,whenthevesselhullorkeelisstressedbywaveimpact(hogging/sagging)itcanresultinseriousdamagetothecanoeandcanoescancapsizeandsinkifthishappensduringfishingactivities.
ThemostsophisticatedoutriggercanoemodelscanbefoundalongthecoastofManatutoorBaucau,butmostlyinAtauro.
Theseboatsareusedbothforfishingwithdifferenttypesofgillnet(driftnets)butmostlyforthetransportationofpeopleandcommodities.
ThemovementofpeopleandcommoditiestoandfromDiliandtotheneighbouringareasofAtaurohasprovidedmanyfisherswithanattractivealternativelivelihoodtofishing.
Currently,theferryboattoDilionlytravelsonceperweek.
ThisisnotenoughtomeetthetransportneedsoftheAtauroislanders(whereforexample,thesupplyofvegetablesandotherfoodstuffsislimitedandthepeopleneedregulartransporttoandfromDili).
ThejourneyisalsoexpensiveandrequirestravelviaBeloi,wheretheportislocated.
Thereforemanypeopleprefertotravelwithlocalfisherswhotravelalmostdailywhentheweatherandseaconditionsarefavourable.
Thisboattyperequiresmoreskilledconstructionskills,asthehullisalwaysreinforcedwithframesandthehullsbottomisbuiltwithpanels,increasingthedurabilityoftheboat.
TypethreeboatsaremostlyfoundinAtauro.
BoatbuildersatMakiliandWaruanaconstructthebiggerandmorecomplexboatBox7.
DetailsofconstructionanddesignOutriggertypethree.
Detailsofthepaneljointsofwoodenboatconstruction.
OnepieceoutriggerboatfromValu,Tutuala,EasternTimorLeste.
ThisboatisusedbothfortransportationofpassengerstotheLulik(sacred)islandofJako(inthebackground)aswellasfishingwithhookandline.
Thedesignrevealsthepointtowhichthewoodtreetrunksavailableaffectthedesignoftheboats.
25modelsofthistype.
Thepanelsformingthehullcanberemoved,thedesignisstableandthereinforcementsensuredurability.
Incontrast,thesemorecomplexmodelshavehigherfreeboards.
Thismayresultinadecreaseinstability.
Impropertransomheightmayupsettheboattrimincliningittotheheadorthekeel,andfacilitatingtheentryofwater.
However,outriggersnotablyincreasethestabilityofthistypeofboat.
Thisfactiswidelyrecognizedandknownbyusers:mostoftheintervieweeshighlightedtheirimportanceinincreasingstability,vesselbuoyancyandloadcapacity.
Toensurethesafetyofendusers,boatbuildersandoperatorsshouldchecktheboatloadcapacitywithoutoutrigger(s)andshouldrigidlyadheretoit.
Themajordrawbackofthesebetterqualityboattypesistheirprice;besidestheincreasedskilledleveloftheseboatbuilders,thewoodisusuallyimportedfromIndonesia.
Thefinalcostofawoodenvesselofabouteightmetres(aroundUSD3,000)isalmosttentimesmoreexpensivethanthepriceofacanoemadefromalocaltreetrunkandmodelledbytheuser.
Furthermore,itcannotbepoweredwithcheap,lowpowerengines(seenote12).
ConstructionmethodTheconstructionmethodfortypethreeboatsissimilartothatexplainedaboveforwoodencanoes.
Theboatbuildersconstructthemainboatbodyusingimportedwoodandtheendusersinstalltheirownoutriggers.
Duringtheassessmentitwasnotedthattheoutriggerswereingeneralcorrectlyinstalled.
Fishersareabletocorrectlyestimatethewaterlineandthepositionoftheskids.
Therecentintroductionofelectricalboatconstructiontools,suchassandersanddrillshasprovidedconsiderableadvancesinconstructiontimesandfinishing.
Howevermachetescontinuetobetheprincipaltoolforboatconstructionwork,mostlyforthewoodshapingphase.
Inthecaseofoutriggercanoestypeone,theyareforthemostpartconstructedbytheirownerfishers.
Woodentrunksareboughtfromsupplierswhotransportthemfrommountainousareas(oftenfromcoffeeplantationsonthemainisland,asthesetreesareusedtoprovideshadeintheplantations).
Thetrunksarelaidoutondisplayinanystrategicplacewithinhamletswhereallfisherscanseethem(suchasonaroadorpathtothebeach).
Onotheroccasionswoodentrunksarebroughtbyfamilymemberslivingneartheforestorinmountainousareaswhosupplythematcheaperprices.
InterestedfisherswillpaybetweenUSD75andUSD250forsmalltolargetreetrunks.
Oncebought,thefishershapesthetrunkbyhandusingonlyamachete.
Theconstructionofasmallcanoeofthistypecantakemonths.
Ifthetrunkisbigenoughtoconstructatypetwocanoe,theprocessisthesameasforatypeonecanoe.
However,thefinishingandinstallationofthepanelstoraisethefreeboardisdonebyaspecialistwhoispaidtoconducttheworkandifnecessarytofitframesintotheboatinterior.
Thefinalcostofaboatisaffectedbyavarietyoffactors.
Theseincludethequalityofboats,theskillofthebuildersandtheuseofimportedorlocalmaterials.
Pricealsodependsuponthedifferentmodeofboatconstructionwithtypethreeboatsbeingconstructedbyaboatbuilder,typeonebeingconstructedbyfishersthemselves,andtypetwoboatsbeingconstructedbyfishersthemselveswiththeassistanceofaboatbuilderforthefinishing.
.
Thisresultsinhugedifferencesinthepricesofboats:fromthecheapestboatonetype(approxUSD100)tothebestboatthreetypes(approxUSD3,000).
Forthemajorityoffishersitisverydifficulttobeabletoaffordthebetterqualitywoodenboats(typethree),whicharemostlyownedbythosewhocombinefishingwiththetransportationofpeopleandmaterialstoandfromAtauroisland.
RecommendationsforboatbuildersandusersItisrecommendedthatoutriggersaremadeofdoublebamboosectionstoguaranteetheirdurability.
Tomakeoutriggersfullyeffective,boatbuildersshouldconsiderthewaterlineofthevesselwheninstallingtheskids.
RFLPFieldProjectDocument2012/TIM#5SAFETYATSEAASSESSMENTINTHETIMOR-LESTESMALL-SCALEFISHERIESSECTOR2626Box8.
WoodenoutriggervesselsfromNorthandSouthAtauroFinishedwoodenoutriggerboat.
Ithasnokeelandisonlyreinforcedby9framesand2horizontalbars.
OutriggerofAtauro.
WhileintherestofTimor-Lestethemostcommonwaytoattachthewoodenbarsthatsupporttheskidstothemainbodyoftheboatistolashthemwithropes,inAtauroboatbuilderspassthebarsthroughthehull.
Makilioutriggers.
Constructedbyalocalbuilder.
Plaintransomandrakedbow.
Boatoperatorsshouldalwayscheckthevessel/outriggerandengineconditionbeforedeparture.
Ifvesselmaintenanceisconductedproperly,mostboatsshouldlastformorethanfiveyears.
Regularmaintenanceshouldbeconductedatleasteverysixmonths,includingpaintingandcaulkingofalljoints.
Themainsafetyissueconcerningvesselsusedforfishingortransportistheminimalknowledgebuildersandownershaveofvesselloadingcapacity.
Severalaccidentshavebeenreportedbecauseofover-loading.
Asimplemethodtocalculateboatloadingcapacityshouldbeprovidedtobuildersandownerstoavoidaccidentsatsea.
Simpletemplatescanbeusedbyboatbuilderstopaintoneachboatthemaximumweightthattheboatcancarry,aspointedoutintheprevioussection.
Thehighpriceofimportedwoodhasseverelyconstrainedtheaccessoffisherstogoodqualityboats(Alonso,2009).
Poorerfishers,orthosewhoselivelihoodscomprisefishing,small-scaleagricultureandanimalrearing(thevastmajority)cannotaffordbetterqualitywoodenoutriggersandcontinuetoconstructunstableandinsecure,lessdurableoutriggercanoesbuiltusinglocallypurchasedtreetrunksofinferiorquality.
Arevisionoftherestrictionsontheuseofthewoodforboatbuildingpurposesshouldbecontemplated,particularlyifboatbuildingtimbercanbesustainablyforested.
Fibre-glassNautilus2008vesselA2008developmentprojectintroducedfibre-glassboatsaspartofawiderprogrammeaimedatthedevelopmentofthesectorthroughthedonationofboatsandfishingequipment,thecreationoffishingcooperativesandtheintroductionoffishingtechniques,suchasbottomlonglining.
Today,manyfishinggroupshaveadoptedthepromotedfishingtechniques.
Howevertheintroductionoffibre-glassboatshashadunevenimpact.
Theintroductionoffibre-glassboatshasbeenpromotedbyvariousgovernmentandnon-governmentalprogrammes,includingthatofSpanishNGOPazyDesarrollounderaspecificloanscheme,theIKUEIoverseasvolunteersprogrammeimplementedineasternTimor-Leste,the2008programmewiththefishingcooperativesandthedeliveryofboatsbythedifferentgovernmentMinistriesfrom2009untiltoday.
27BasedondatafromtheNationalDirectorateofFisheriesandAquaculture,atotalof111fibre-glassfishingboatsweredeliveredtofishergroupsbetween2008and2010bytheNDFA.
Differentmodelswereprovided.
The2008modelwasnamedNautilus.
Thesecondmodel,deliveredfrom2009to2011,wascalledTuna.
Thepromotionoftheintroductionoffibre-glassboatshadseveralaims:firstlyitwaslinkedtotheprotectionandconservationoftreesandforestsandwasalignedwiththerestrictiveforestryusepolicy;secondlyitwasaimedatthemodernizationanddevelopmentofthesectorandatincreasingcatchlevels;andthirdlyitwasaimedatimprovingtheworkingconditionsandsafetyatseaoffishers.
Theintroductionoffibre-glassboatshoweverfaced/facesmanyobstacles.
Someofthesearerelatedtothewayvesselswereintroducedwhilesomeofthemarelinkedtocharacteristicsoffibre-glassasamaterial.
Inthefirstcase,itshouldbenotedthatalmostallprogrammespromotingtheintroductionoffibre-glass(withtheexceptionoftheprogrammeoftheNGOPazyDesarrollo)wereconductedundertheauspicesofemergencyprogrammes.
Themainobjectivewastorestoreproductivecapacityofthefishingsector,whichwasseverelydamagedafterthewithdrawalofIndonesiaandthe1999conflictduringwhichmostboats,netsandfishinginfrastructurewereburnedanddestroyed(MAF,2001).
Whentheconflictendedsupportfromstateinstitutionsandnon-governmentalorganizationsincludedthedonationofboatstocoastalfamilies.
Whilethismeasuregavebenefitstoproducersandconsumersintheimmediatepost-conflictperiod,thistypeofsupporthascontinuedwellbeyondtheemergencyperiodandthishashadcounterproductiveeffects.
"Justgiving"boats,enginesandnetshasbeenacommondevelopmentapproachtakenbyvariousinstitutionsoverthelastdecade,resultinginincreaseddependencyoffishersonexternalaid.
Theavailabilityoffibre-glassandtheskillsforfibre-glassrepairarevirtuallynon-existentwithinTimor-Lesteandthematerialsaresignificantlymoreexpensivethanwoodinthecountry.
Thetotalcostofafibre-glassboatiswellbeyondthereachofmostfishers(aroundUSD2,750fortheTunamodel)iftheyhadtopayforitthemselves.
Fibre-glassrepairsarealsocostly.
Asaresultitiscommontofindfibre-glassboatsthathavecrackedbutwhichhavenotbeenrepaired,becausethevaluegiventothefibre-glassboatsbytheirownersisequaltotheircost,i.
e.
zero.
Mostfishersarecriticalofthewaybeneficiarieswereselectedforboatdonation.
Fisherswerenotselectedbasedonanyspecificcriteriaoronanyofficialrecords(thefirstcensusoffishersandboatswasonlydevelopedwiththesupportoftheRFLPin2011).
Thefibre-glassboatsproducedanddonatedhavenotincreasedfishingcapacity,astheyarenotappropriateforusingmorenetsormoreefficientfishingtechniqueswhilefisherscanonlyfishthesamenumberofdays.
Ontheconservationside,ithastobementionedthatafterseveralyearsofinvestmentinthepromotionoffibre-glass,fibre-glassboatscompriselessthanfourpercentoftheTimor-Lestefishingfleetwithmanyofthosevesselsinoperativeafterlessthanoneyearofuse.
Onceinoperative,itiscommonfortheirownerstoreverttousingwoodencanoesforfishing,asitischeapertobuyadugouttypetwocanoe,thanitistorepairafibre-glassboat.
Evenwhenfibre-glassboatsarestilloperative,thewoodencanoesarenotdisposedoforreplaced.
Theyareinsteadusedbyotherfamilymembers,friendsorneighboursofthefibre-glassboatowners.
Thiscanleadtoaslightincreaseinthelevelsofcatchbutatthecostofpossibleover-fishinginthesamelocalizedTable1.
Boatsproduced/handover2008-2011NDFATotalBudgetAllocationofNDFAfundsforFibre-glassBoatsandMotorsdistributedQuantityofFibre-glassboatsConstructedNumbersofEnginedistributed2008Nodata120,000USDNodataNodata2009Nodata70,000USD40unitsNodata2010779,066USD300,000USD54units63units2011NodataNodataNodataNodataRFLPFieldProjectDocument2012/TIM#5SAFETYATSEAASSESSMENTINTHETIMOR-LESTESMALL-SCALEFISHERIESSECTOR2828fishingareas.
Asseaworthinessofthedonatedfibre-glassboatsisonlycomparablewithwoodenoutriggercanoestheyhavenotallowedfisherstoexploremoredistantnewfishinggroundsbeyondinshorecoralreefs.
Thisreportfocusesonlyonthesafetyaspectsofthefibre-glassboatsdonatedbythestateinstitutions,evaluatingtheirdesign,constructionandadequacyforfishing.
MaterialsGlassreinforcedplastic(GRP)isamaterialwidelyusedforboatconstructiongivenitslowweight,strength,durabilityandeaseofrepair.
Ithastobenotedthatawoodenvesselhasaspecificgravityof0.
33to0.
63,whileafibre-glassvesselhaslessbuoyancyandaspecificgravityof1.
50to1.
60.
Indevelopedcountrieswherematerialsandexpertiseforfibre-glassrepairarereadilyavailable,maintenanceoffibre-glassboatsiscosteffective.
HoweverinTimor-Leste,theavailabilityoffibre-glassislowandithastobeimportedunderrequest,astherearenosuppliersincountryoffibre-glassmaterials.
TheNautilus2008wasconstructedusingwoodandfibre-glass.
Theboatwasconstructedusingasandwichmethod.
Althoughthewood(Aimutin,Eucalyptusalba)wascoveredusingtwolayersoffibre-glass,theendresultwasaveryheavyvessel.
ThisissignificantbecausethemajorityoffisherinTimor-Lestedragtheirboatsupanddowntothebeacheachdaybecauseofthelackofportinfrastructure.
DespiteusinggoodqualitymaterialsfortheconstructionoftheNautilus,thefinishingqualitywaspoor.
ThemajorityoftheNautilusboatsdonatedarecurrentlydamagedandunused,whichrevealsthatthefibre-glassboatdesignandconstructionmethodwasinappropriateforaboatintendedfordailyfishingactivities.
DesignTheNautilus2008issevenmetreslong,hasawidthof1.
1metresandadepthof0.
09metres.
Thegeneraldesignofthehullmakestheboatstable,howevertheheightoftheinnercompartmentsofthevesselmakesthedistributionofweightinappropriateasthedeckistoohigh.
Furthermore,theresultinginteriorcompartments,whicharesealed,havenofunctionotherthanbuoyancy.
RecommendationsforboatbuildersandusersAlthoughthedonationofthisboatmodelhasstopped,theyarestillavailableinthesecondhandmarket.
Theexcessiveboatweightresultedingreaterfuelconsumptionperfishingtrip.
Italsomadetheboatslowerwhichincreasedthetimetakentogotoandreturnfromfishinggroundscomparedtowoodencanoes.
Giventhedailydraggingofthefibre-glassboatsfromandtobeachesandtheminimalknowledgeoffishersonfibre-glassmaintenanceanduse,cracksanddamagewerecommon.
Thishasdiscouragedfishersfromusingfibre-glassboats.
Afterreceivingdonatedfibre-glassboat,fisherswerefrustratedwiththeirinabilitytorepairthem.
Althoughtheboatsseemedbig,thedesignhasmanyergonomicshortcomingsandtheavailableon-boardspaceforthemovementofthecrewandfishingoperationswasactuallyrelativelysmall.
Tothosewhoreceivedtheseboatsandwhocontinueusingthem,itisrecommendedthattheyanchorthevesselinthewaterattheendofeachday.
Additionally,thetransomheightofthevesselsternshouldbedecreasedto520mmtoensureimprovedpowerefficiency.
Fibre-glassTuna2009-2012vesselAfterthe2008programmeitwasassumed(incorrectly)thattheNautilusmodelwasrejectedbyfishersonlybecauseitswidebeamwasverydifferenttotraditionalTimoresewoodendugoutcanoedesigns.
InfactthelowacceptanceoftheNautilusfibre-glassboatwasprimarilyduetothelackofshelterportsinareaswheremarinecurrentswereconstantandstrong.
Thismeantthatfishersdraggingtheheavyfibre-glassboatsupanddownbeachesandoftendamagingthekeelsandbecausetheywereinappropriately29Figure2.
BambooreinforcementsshouldbeinstalledintheTunamodeltoimprovethesafetyoffishers.
designedandover-weightforlonglineandcooperativefishing.
Forallthesereasons,theuseofthemajorityofdonatedfibre-glassNautilusboatshasnotbeensustained.
AnewmodelcalledtheTunawasdevelopedin2009.
Astheboatwaslighterandtheshapewassimilartothatoftraditionalwoodendugoutcanoes,thenewmodelwasbetterreceivedbyfishers.
ThefollowingsectionsexaminethefeaturesoftheTunamodel.
ConstructionandmaterialsTheboatwasconstructedoffibre-glass,withonlytheframesbeingmadeofwood.
ManydeficiencieshavehoweverbeenidentifiedduringconstructionoftheTunamodel.
Thewoodusedfortheconstructionoftheframeswasveryweak.
Theskeletonofthevesselwasmadewithsoftwoodthatwascutwithcuttersratherthanbystrongmaterials(woodorothers)whichcouldensuredurability.
Thefreeboardwasconstructedwitheightlayersoffibre-glass,andthebottomwith13layers.
Thismakestheboattoorigidandtooexpensive.
Theconsequencesofthislackofflexibilityisthatmostboatscrackedwithinafewmonthsofuse.
Thefinishing,onthecontrary,wasgood.
DesignTheboatis7.
5metresinlength,hasamaximumwidthof1.
3metresandis0.
53metresindepth,withashapeclosetothatoftraditionalwoodencanoes.
Basedondesigncalculations,theTunamodelhasinsufficientstability;thepossibilityofsinkingorbeingoverturnedisthereforehighandsomecasesofthishavealreadybeenrecorded.
Vesselownershavereceivedinsufficientinformationontheloadingcapacityofthevesselorontheneedtoinstalloutriggers.
Atthesametime,theTunaisperceivedbyfishersasbeingmorestablethananormalwoodendugoutcanoeandsomanyfishershavenotinstalledoutriggers.
HoweverthismakesfishingusingtheTunamodelmorerisky.
RecommendationsforboatbuildersandusersInordertoensureenhancedflexibility,thenumberoffibre-glasslayersonbothsidesshouldbereducedfrom8to3,andonthebottomthenumberoflayersshouldbereducedfrom13to5.
Buoyantmaterialslikepolyurethanefoamshouldbeincorporatedintotheboatdesign.
Strongermaterialsfortheframesandkeelshouldbeused.
Currentlysoftwoodisutilized;locallyavailablebamboowouldimprovetheboatdurabilityifusedfortheconstructionoftheframesandkeel.
Fisherscanalsosignificantlyimprovethestabilityandsafetyoftheseboatsbyinstallingbambooframesandusingbambootoreinforcetheframesandkeeloftheboat.
Hardwoodtimbercanalsobeused.
LiketheNautilus,noinformationwasprovidedontheloadingcapacityoftheTunamodelvesseloronitsmaintenance.
Somesimplegraphicsindicatingthevesselloadingcapacitywouldimprovethesafetyoffishers.
Boatownersshouldconsiderreducingthetransomheightbycuttingthefibre-board.
Inaddition,thesafetyandstabilityoftheTunamodelwillbesignificantlyimprovedbyinstallingoutriggers.
RFLPFieldProjectDocument2012/TIM#5SAFETYATSEAASSESSMENTINTHETIMOR-LESTESMALL-SCALEFISHERIESSECTOR30305.
PARTIII.
ACCIDENTSATSEABasedonthebaselinesurveyconductedbytheRegionalFisheriesLivelihoodsProgrammeinitsinceptionphase,themainproblemsfacedbyfisherswerebadweather,boatleakageorboatsgettingoverturned.
Figure3.
Typesofproblemsfacedatseabasedonrespondentsanswers(2011)Source:AMSATInt.
(2011)Thebaselinesurveyconcludedthat:"Althoughfisherscommonlyexperiencedproblemsatsea,ingeneralfishersregardedaccidents,injuryanddeathaspartofthejob,butalsoacknowledgedtheimpactofnegligence.
Fatalaccidentswererareandthelevelofconcernwasthereforequitelow.
Fishingwasgenerallyconductedclosetoshoreinsmallrowboats.
Iflargerboatsandenginesextendthefishingrange,safetywillbecomemoreproblematic.
Itisrecommendedthat,throughsocializationstrategies,abetterunderstandingoftherisksandbenefitsoffishingfurtherfromshorebecreatedi.
e.
thatitwillbringgreaterreturnswhilerequiringmoreseriousattentiontosafetypreparations.
Safetyequipmentwasconsideredexpensiveandnotapriority.
Thereforeincreasedawarenessofsafetyregulationsandpracticesshouldbeencouragedincludingtheroleofavoidablenegligenceandsensibleprecautions.
Trainingintheuseofbasicsafetyequipment,andprogramstoassistwithaccess,shouldbeimplemented.
Accesstoreliable/meaningfulweatherforecastswasanissue.
Thereforeimprovedaccesstoweatherinformationwouldbeagoodfirststep.
Thiscouldbesupportedbyaccesstoinexpensiveradiosforfisherstomonitorweatherforecasts.
"Whilethisstudywasdonewithacarefulmethodologybasedonrandomsampling,itreliedontheresponsesoffishers.
AsofOctober2012,someoftheseitemshavebeenaddressedinoneoranotherwayunderRFLPoutput2onsafetyatsea.
Underitssafetyatseastrategyattheendof2010RFLPconductedapilotprojectaimedattheestablishmentofanaccidentreportingsystemforthesmall-scalefisheriessectorofTimor-Leste.
Afteraninitialpilotphase,theformatsforgatheringdataaswellasthereportinglinesweresimplifiedandintegratedintoalargerRFLPinitiativeforthecreationofaNationalFisheriesStatisticalSystem.
97.
5%37.
7%17.
7%31.
2%0.
7%18.
5%11.
4%9.
6%23.
8%5.
3%95.
9%35.
2%15.
2%26.
3%0.
2%19.
7%6.
6%11.
8%16.
0%8.
2%0%10%20%30%40%50%60%70%80%90%100%BADWEATHER/HIGHWAVEBOATWASOVERTURNEDBOAT/ENGINEPROBLEMBOATLEAKAGEFIRELOSTDIRECTIONLOSTCOMMUNICATIONRUNOUTOFLOGISTICSILLNESSCONFLICTWITHINSHIPCREWSTypesofproblemsfacedatseaFisheriesLivelihoodsProjectSurveyArea(FSA)GeneralSurveyArea(GSA)31Figure5.
FatalitiesbytypeofaccidentFigure6.
StatusofthevictimsofaccidentscausedbyattacksfromwildanimalsSource:NationalFisheriesStatistics.
NationalDirectorateofFisheriesandAquaculture,Timor-Leste.
77%15%8%BoatsankBoatcapsizedAttackedfromwildanimalMissingboatDrowningLossmotorRunoutoffuelFireonboat44%13%26%17%SeafisherOtherfishwokersUnderageUnknownTheaccidentreportingsystem,whichisavailableattheonlineplatformwww.
peskador.
org,hasbeenactivesincemid2011.
CurrentlyinformationisbeinggatheredbyRFLPFieldManagersandDistrictFisheriesOfficersoftheNationalDirectorateofFisheriesandAquacultureinseveraldistrictsofthecountry.
Afteroneyearofdatacollection,somelightcannowbeshedontherealsafetyatseasituationandthecausesoftheaccidentsatseaandtheirmagnitudeandimportancewhichpreviouslywereunknown13.
Figure4.
Typesofaccidentsatsea.
SeriesJanuary2010-October2012Source:NationalFisheriesStatistics.
NationalDirectorateofFisheriesandAquaculture,Timor-Leste.
AsFigure4.
Typesofaccidentsatsea.
SeriesJanuary2010-October2012shows,attacksbydangerousanimalsaccountformorethan50percentoftheaccidentsatseareported(datafromJanuary2010toOctober2012)andthemajorityofrecordedfatalities.
Ofthe25attacksregisteredonlyonewascausedbyashark(ontheNorthernCoast–Liquica)andtwobyfreshwatercrocodiles(interiorlakes/rivers).
Theremaining22werecausedbysaltwatercrocodiles.
However,althoughtheseaccidentsareclassifiedunderthesametype,therearehugedifferencesbetweensharkandcrocodileattacksaccordingtolocalbeliefsandcustoms.
13SeetheaboveRFLPBaselineSurveyresultsasanexample.
24%5%51%10%3%3%2%2%BoatsankBoatcapsizedAttackfromdangerousanimalMissingboatDrowningLossmotorRunoutoffuelFireonboatRFLPFieldProjectDocument2012/TIM#5SAFETYATSEAASSESSMENTINTHETIMOR-LESTESMALL-SCALEFISHERIESSECTOR3232ThemajorityofcrocodileattacksoccurredintheSouthernsea,wherethepopulationofsaltwatercrocodilesisbiggerandmoreconcentredbothalongthecoastandincoastallakesandestuaries14.
Victimsincludefishersoperatingatsea(categorizedasseafishers)andfishersconductingotherproductiveactivitiesininter-tidalareas(categorizedasotherfishworkers)-mostlywomen,andchildrenwhileeithergatheringresourcesintheinter-tidalareasorsimplynearthecoast/river.
Whilethemajorityofcrocodileattacks(bothreportedandunreportedattacks)occurinthesouthernwaters,attacksinthenorthernseahavealsobeenreportedandmainlyinthedistrictsofBaucauandBobonaro.
Figure7.
Typesofaccidentsbyarea(SouthandNorthCoasts)Source:NationalFisheriesStatistics.
NationalDirectorateofFisheriesandAquaculture,Timor-Leste.
Theavailabledatadoesnotprovidesufficientinformationtocommentonthepatternsofcrocodileattacks.
Howeverthereseemstobeaconcentrationofcrocodileattacksfrom18.
00to21.
00hours.
Thismaybeduetomorepeoplegatheringaroundthesetimesnearshallowwatersforthepurposeofsocializing,collectingfirewoodandotherresources,forwashing,swimmingandplayingorcollectingwaterfordomesticuse.
Althoughnotstatisticallysignificant,theavailabledatasuggeststhatmorecrocodileattacksoccurduringtherainyseason,howevermoretimeseriesdatawillhavetobegatheredtoconfirmthis.
Themajorityofcrocodileattacksresultinthefatalityofthevictims.
Only13percentofcrocodileattackvictimswerereportedtohavesurvivedandrecovered.
ThechallengesforgatheringdataoncrocodileattacksinTimor-Lestearenumerous,whilepreventingcrocodileattacksisasignificantchallenge.
Itislikelythatmostcrocodileattacksremainunreported.
ThenumberofaccidentsfromcrocodileattacksinthesouthernseaisprobablymuchhigherthanthecurrentdataavailableshowsandthaninitiallyestimatedwhenRFLPfirstcommencedactivities.
14Detailsontheaccidentsrecordedcanbefoundatwww.
peskador.
orginthesection"Accidentsatsea/Aksidenteihatasi".
0510152025BoatsankBoatcapsizedAttackfromwildanimalMossingboatDrowningLossmotorRunoutoffuelFireonboatTotalNortherncoast(TasiFeto)Southerncoast(TasiMane)33Figure8.
LocationofthevictimwhenthecrocodileattackoccurredFigure9.
TimeofthedaywhentheaccidentoccurredFigure10.
TimeofyearwhentheaccidentoccurredFigure11.
ConsequencesofthecrocodileattackSource:NationalFisheriesStatistics.
NationalDirectorateofFisheriesandAquaculture,Timor-Leste.
74%4%22%Developmentofactivitiesinshallowseawaters/riverUnknownDevelopmentofactivitiesnearshallowseawaters/river-1012345678012345678Q1Q2Q3Q487%13%FatalitiesInjuriesIthastobenotedthatmanynonfisherslivinginremotecoastalareasarealsovictimsofcrocodileattacks15andtheseaccidentsareoftenunreported.
Crocodilesareconsideredsacred(lulik)beingssubjecttotabooandrespect.
TheculturalattachmentoftheTimoresepopulationwiththecrocodilesisreflectedinTimoreselaw,underwhichitisaprotectedspecies.
Beingthevictimofacrocodileattackcanbeconsideredashamefortheindividualorthefamily,asitiswidelyconsideredthatcrocodileattacksoccurbecausethevictims/theirfamilieshavecommittedoffensesagainsttheirancestors.
Inmostcasesthevictimsdonotreporttheaccidentanddonotgotohospital;asthecauseoftheaccidentareconsiderednon-physicali.
e.
spiritualinnature,theremediessoughtrequiretheperformanceoftraditionalhealingmethodswhichincludetheperformanceofpurificationritualsandrestorationoftheorder,i.
e.
therelationshipbetweenhumansandnon-humanbeings.
Thesemethodsarewidelypreferredtotakingthepatienttoahospital.
ThesefactsprovideanexplanationforthedifferencebetweentheresultsgatheredduringtheRFLPbaselinesurvey(basedonrespondentsviews)andtheresultsoftheaccidentsatseadatabase(whichisaregister).
Disregardingthecrocodileattacksandanalyzingonlythecausesofboatssinkingorcapsizingatsea,unexpectedbadweatherandoverloadingofvesselswerethesecondmostimportantcausesofaccidents.
15ForthisreasontherateofcrocodileaccidentsrecordedbytheNDFAisverylikelytobesignificantlyunder-estimated.
RFLPFieldProjectDocument2012/TIM#5SAFETYATSEAASSESSMENTINTHETIMOR-LESTESMALL-SCALEFISHERIESSECTOR3434Figure12.
CausesofboatssinkingandcapsizingFigure13.
CausesofboatsgoingmissingorequipmentlossSource:NationalFisheriesStatistics.
NationalDirectorateofFisheriesandAquaculture,Timor-Leste.
54%8%23%15%Developmentofactivitiesinshallowseawaters/riverUnknownBadweather/seaconditionVesselinbadconditionDevelopmentofactivitiesnearshallowseawaters/riverVesseloverloaded+badseaconditionVesseloverloadedBadmotorcondition33%17%17%33%Developmentofactivitiesinshallowseawaters/riverUnknownBadweather/seaconditionVesselinbadconditionDevelopmentofactivitiesnearshallowseawaters/riverVesseloverloaded+badseaconditionVesseloverloadedBadmotorconditionBadmotorcondition+badweatherBoatsgoingmissingorlossofequipmentoccurredmainlybecauseofunexpectedbadweatherandpoorenginecondition.
Inadditiontotheaboveaccidentcausesitshouldbestressedthatmanyproblemshavebeenidentifiedrelatedwithdivingwhichputfishersatrisk.
InAtauromanyfisherwomenandfisherscatchfishfortheireverydayconsumptionorforsaleintheirlocalmarketbydivingandspeargunfishing.
Althoughnofataldivingaccidentshavebeenrecorded,diverssufferfromspecificoccupationalhealthproblemsthatshouldbegivenfurtherconsiderationandspecificsafetyatseaaction.
Specificprogrammesshouldaddressthemainriskswhichspearfishingdiversareexposedto,includingdecompressionsickness.
Contrarytowhatisgenerallythought,includingtheRFLPmid-termevaluationteamreport,fishinginshallowwatershasbeenshowntobemuchmoredangerousthanfishingindeepwatersinTimor-Leste.
Specificprogrammestoaddresstheseissuesmustbedesignedandimplemented,andspecificresearchshouldbeconductedbeforeanyremedialmeasuresaretaken.
Measuresshouldconsiderthelocalstructuresofdecisionmakingandtheritualandtraditionalauthorities,whoserolewouldbedefinitiveinthesolutionoftheproblem.
Inthisvein,anymeasuretakenshouldbenotonlyecologicallyadequate,butalsoculturallysensitive.
35RECOMMENDATIONSThisreportsummarizesspecificrecommendationsthathavealreadybeenprovidedtofishersandboatbuildersindifferentwaysthroughthesafetyatseaactivitiesoftheRFLP.
However,aspointedoutabove,thisdocumentisalsotargetedforusebyfisheriesplannersandpolicymakersbeyondtheimplementationoftheRFLP.
Thissectionsummarizesspecificrecommendationsforpolicymaking.
Forthelegalprovisionsonsafetyatsea1.
Toeliminatesub-standardboatsthatcauseasignificantthreattosafetyatsea,furtherconsiderationisneededforTimor-LestetosetuptheirownFlagStatewiththeInternationalMaritimeOrganization(IMO)assoonaspossible.
Timor-Lestealsoneedstoselectqualityinspectionbodies,toenrolthemasmembersoftheInternationalAssociationofClassificationSocieties(IACS)orEuropeanMaritimeSafetyAgency(EMSA)andtodevelopitsownsafetystandards.
2.
Todate,thereisnoshipbuildingcompanyinTimor-LestewhichmeetstherequirementsoftheInternationalOrganizationforStandardization(ISO).
Moreover,Timor-Lestehasyettohaveanassessment/inspectionbodyforshipbuilding.
Thisshouldbeestablishedundertheumbrellaofaninter-ministerialbodywhichatleastshouldincludeboththePortAuthorityandtheDirectorateofFisheriesasmembers.
CoordinationbetweentheNDFAandthePortAuthorityshouldbeensured.
3.
InspectionoffishingboatsshouldcontinuetobetheresponsibilityoftheDepartmentofFishingInspectionoftheNDFA.
Inthisregard,specificcapacitybuildingshouldbeprovidedinthenearfuturetoincreasethecapacityofDepartmentofFishingInspectionstafftoconductinspectionofsemiindustrialandindustrialboats.
4.
Minimumtechnicalrequirementsfortheissuanceofcertificatesaswellasforthedevelopmentofdesignsshouldbeestablishedandapproved.
Atthesametimeinstitutionsorcompaniesshouldbeestablishedwhicharecapableofprovidingspecifictrainingandcertificatesthatarecurrentlyrequiredbyexistinglaw.
Currentlytherearenosuchinstitutionsincountrycapableofdoingthis.
TheTimor-LesteFisheriesTechnicalSchoolprojectshouldaddresstheseissuesandintegratethemintotheircurriculum.
5.
Theproceduresestablishedbylawfortheissuanceoffishinglicensesshouldberevisedandsimplified,adaptedtothestructuralcharacteristicsofthesectorandthelimitationsinmobilityandresourcesbyproducers.
6.
Theclassificationofthefleetshouldbesimplifiedtoensurethatallvesseltypeswithinthefleetaredefined.
Simplecriteriashouldservetocategorizeboatsassemiindustrialorartisanal,sothatspecificsafetyatsearequirementscanthenapplytothem.
Inadditionfishingzonesshouldbesimplifiedtakingintoaccountthelimitationsoncontrollingtheoperationoffishingvessels,andspecificallytheindustrialfleet(bothdomesticandinternational).
7.
Appropriatevocationaltrainingcoursesshouldbedeliveredforskippersandboatoperatorstoimprovesafetyatsea.
TheestablishmentoftheTechnicalSchoolcanprovideaproperplatformforthis.
8.
Specificequipmentcanberequiredfortheoperationofsmall-scalevessels.
Ifspecificlegislationonsafetyatseaforsmall-scalefishingvesselsisdeveloped,theinfrastructureandbudgetlimitationsoftheNDFA,theconstraintsoffisherstopurchaseequipmentandothercharacteristicssuchasboatcapacityshouldbetakenintoaccount.
Asanexample,RFLPprovidedspecialplasticbagstofisherssothattheyRFLPFieldProjectDocument2012/TIM#5SAFETYATSEAASSESSMENTINTHETIMOR-LESTESMALL-SCALEFISHERIESSECTOR3636cantaketheirmobilephoneswiththemwhengoingfishing.
Asthemajorityoffishingareasarelocatednearthecoastwherethereisusuallytelephonecoverageduringmostoftheworkingtime,themajorityoffisherscanhaveameasureofcommunication.
Thisstrategyhasalreadyprovensuccessful16.
9.
Whileawarenessraisingshouldbeconductedfordiversonthesafetymeasurestoavoidthehighestrisksduringfishing,specificregulationssuchasthesettingupoftheminimumdistancebetweendiversduringoperationsshouldbewithdrawn.
Resources,numberofstaffandbudgetavailablemaketheenforcementofthiskindofprovisionalmostimpossible.
Inadditionthistypeofregulationcanbeusedasameanofabusebytheauthoritiesagainstresourceusers.
10.
TheintroductionoftheRFLPpromotedCommunityBasedIUUreportingsystemusingSPOT17shouldbecomeregularizedasanationalpolicyonIUU.
ContrarytothetraditionalVMSsystem,theCommunitybasedIUUreportingcurrentlyoperativeinTimor-Lesteeffectivelyengagesfishersinthereportingofillegalactivities.
CurrentregulationsprovideanopportunityforitsregularizationbydispatchfromtheMinister.
11.
TheformalizationoftheIUUCommunityBasedIUUreportingsystemshouldbeaccompaniedbythecreationofabodytorespondtocallsforhelpandreportsofillegalfishingactivitiessentbyfishersusingthereportingdevices.
Apre-agreementwasmadeduringaworkshopheldin2012withRFLPsupportbywhichrepresentativesoftherelevantinstitutionsagreedtocreateaNationalMaritimeSecurityCommittee.
ThisCommitteeshouldberesponsiblefortheestablishmentofthelegalbasisaswellastheoperationandadministrationofacommonoperationscentre,shouldbecomposedofrepresentativesoftheNavalComponent,F-FDTL(army),MaritimePoliceandPNTL(NationalPoliceofTimorLeste),Customs,NDFA,Quarantine,PortAuthority,ImmigrationandFireservices.
Thementionedpre-agreementwasreachedbeforethe2012elections.
Itisdesirablethatthenewgovernment(VConstitutionalGovernment)takestepstofollow-uponthematerializationoftheagreement.
12.
Moreawarenessraisingoncurrentfisheriesregulationsshouldbedone.
ThedisseminationoflawshasproventobeasuccessfulactivitywhichopensaforumofcommunicationanddiscussionbetweentheNDFAandfishers.
AnychangesinthelawshouldbeprecededbyspecificconsultationswiththesectorboththroughcommunityconsultationsandthroughtheNationalFisheriesConsultativeCouncil(regulatedunderthelaw–article1756/2004).
RevisionstothelawshouldbeaccompaniedbyawarenessraisingcampaignsbythealreadyestablishedMobiledisseminationoffisherieslaws.
Disseminationoflawsshouldbesimpleandadaptedtotheneedsandcapacityoftheaudience.
13.
MoreemphasisshouldbegiventoimprovingthecapacityoftheNDFAstafftoappropriatelyinterpretthelaw.
Thisemphasisshouldtakeintoaccountthelanguageconstraints.
14.
Developmentofnewlawsandorrevisionofthelegalframeworkmustnotbeconsideredanaiminitself.
Importedlegalprovisionsshouldbeavoidedandaspecificlegalframeworkinlinewiththeneedsandstructureofthesmall-scalesectorshouldbedeveloped.
Itshouldbenotedthattheabsenceoflawcanbemorebeneficialthantheimplementationofinaccuratelaws,astheycanfacilitatepowerabuse.
TheRFLPdevelopedNationalFisheriesStatisticalSystemprovidesapowerfultoolthatcanbeusedtoadaptthecurrentlegalframeworktotheneedsandcharacteristicsofthefishery.
16www.
rflp.
org/lives_saved17AnexplanationonhowthiscollaborativesystemforthereportingofIUUworkscanbefoundat:http://www.
rflp.
org/sites/default/files/Fishers_patrolling_Timor_Leste_waters.
pdf3715.
Somefisheriesplannershavetoplanandinitiatewithoutlegalassistance.
Moreemphasisshouldbegiventoenhancethecapacityofspecificallyfisheriesplannersandmanagersaswellasinproducingmaterialswhichincorporateabetterunderstandingofthelaw.
However,itishighlynecessarytohaveinputfromalegaladvisortoprovideon-the-jobsupportandmentoringforNDFAstaffonadailybasis.
Forboatassessment16.
Thedonationoffreeboatsisstronglydiscouraged.
Adifferentapproachtomodernizationofthefleetisrecommended.
Thenewapproachshouldnotconsiderthefishersmererecipientsbutasproactiveactorswitharesponsibleroleinthesustainabledevelopmentofthesector.
Currentlyboatdeliveryisconsideredarightbyfishersinsteadofabenefit.
17.
Anypolicyaimedatrenewingthefishingfleetshouldinvolveallthegovernmentandnon-governmentinstitutionswhicharecurrentlydonatingboatsandfishingequipment,sothataharmonizedjointstrategyisimplementedwiththeMinistryofAgricultureandFisheriesastheleadagency.
18.
Iftheobjectiveoftheinstitutionsthatdonateboatsistomodernizethefleetandtoincreasefishingcapacity,thenewlyestablishedBancoNacionaldeTimorLesteprovidesagoodopportunitytodevelopaspecialloanschemeforfishers.
Inthiscaseitshouldbere-conceptualizedasaspecificProgrammeforthedevelopmentofthefisheriessector.
Theprovisionofboatsunderaspecialloanscheme,insteadofdonatingboatsgratiswillenhanceengagementbythedifferentstakeholdersandparticularlyfishers.
19.
Iftheaimoftheinstitutionsthatdonateboatsistoimprovetheworkingconditionsoffishersandtoimprovetheirsafetyatseaandtoreducetheirvulnerabilityitshouldbere-conceptualizedasaProgrammefortherenovationofthefleet.
TheobjectiveoftheProgrammeshouldbetoreplacetheoldestandmostunsafeboatsthatareoperativeincountry.
Ifthisisdone,thefollowingcriteriaforthedonationofboatsarerecommended:i.
Thefishershouldhaveavalidfishinglicenseandberegisteredonthenationalfishercensus.
ii.
Thebeneficiaryhastohaveaboatsimilartotheonethatistobedonated.
Lengthoftheboatcanbeusedasaparameter.
Forexample,if7metrefibre-glassboats(Tunamodel)aretobedonated,ownerswithmechanizedboatsbetween5and8metrescanapply.
iii.
Yearofconstructionoftheboat.
Onlytheoldestboatsactivewillbereplaced.
ThiswillrequireverificationbyNDFAstaff(DepartmentofInspection)beforetheanyboatishandedover,ofwhethertheoldboatisstillinuseandoperative.
20.
Iftheaimoftheinstitutionsthatdonateboatsistoincreasetheresilienceoffishingcommunities,theprogrammeshouldbere-conceptualisedasanAccidentatsearecoveryprogramme,andasacontinuationoftheRFLP-NDFApilotprogrammeonsmallgrantsafteraccidentsatsea.
Thepilotprogramwasdevelopedwithasmallinvestment(maximumofUSD500peraccident;eachgrantcostis1/6ofthecostofeachfibre-glassboatcurrentlybeingdonatedbyvariousgovernmentinstitutionstofishers–Tunamodel);theschemegivesclearcriteriaforthereceiptofthegrant(validfishinglicense,accidentdulyreported,letterofacknowledgmentoftheaccidentbythelocalauthorities)aswellastheequipmentprovided.
Benefitsfromtheprogrammehavebeenalreadyreportedbybeneficiaries.
21.
Thethreeprogrammeschemesmentionedabove,namelytheProgrammeforthedevelopmentofthefisheriessector,theProgrammefortherenovationofthefleetandtheAccidentatsearecoveryprogrammecouldconstitutethreelinesofactionundertheumbrellaoftheFundforthedevelopmentofthesmallscalefisheries,regulatedunderthecurrentlaw.
RFLPFieldProjectDocument2012/TIM#5SAFETYATSEAASSESSMENTINTHETIMOR-LESTESMALL-SCALEFISHERIESSECTOR383822.
Iffishingboatsaretobesuppliedunderanyoftheabovementionedprogrammeschemesthataredevelopedbyappropriaterelevantinstitutions,thefollowingissuesshouldbeconsideredandaddressed:Oneprimaryitemduringtheassessmentofbids/quotesfromdifferentboatsuppliersshouldbethedesignaswellasthedetailsofthematerialstobeusedforboatconstructionandthebackgroundandexperienceoftheboatbuilders.
InordertodothisitisspecificallyrecommendedthatatechnicalbodyisestablishedwhichincludesofficersoftheDepartmentofFisheriesIndustry(Fishingtechnology)andFishingInspectionwhoweretrainedbytheRFLPsafetyatseainternationalconsultant,whowillassessthedifferentboatdesignsandqualityofferedbytheboatbuildingcompanies.
Onlysafeboatsshouldbepromoted18.
Specificbeneficiaryselectioncriteriashouldbeestablishedandagreed.
ThenewlydevelopedfirstNationalCensusofFishersandBoatsprovidesallthenecessarydataforthispurpose.
Beneficiariesshouldsignacontractbywhichs/hecommitstocontributedataonfishcatchandotherinformationasrequiredbytheNDFA.
23.
Indevelopingmoreprogrammesaimedattheintroductionoffibre-glass,itshouldbenotedthatcurrentlyfisherscannotaffordtopurchasefibre-glassboats.
Inthisregard:i.
Theforestrypolicyshouldbereconsideredinordertoaccommodatetheneedsandpossibilitiesoffishingfamilies.
Theremaybeanopportunitytodevelopalong-termsustainableforestryprojecttosupplyhardwoodtimberforfishingboatconstructionandrepair.
ii.
AsprocuringboatconstructionmaterialsotherthanwoodisnotfeasibleforfishersinTimor-Leste,itisrecommendedthatsupportisgiventoregularmaintenanceofwoodenfishingvessels.
Thiscanbeintheformofsubsidizingre-paintingofvessels,andtheprovisionofvesseldesignexpertise,etc.
Othersafetyatseamatters24.
Anationalawarenessraisingcampaignshouldbeconductedtomakekeyfisherysectorstakeholdersfullyawareofallrelevantinformationavailableconcerning(1)safetyequipmentandcommunicationtools,(2)safeoperationandmaintenanceofequipment,and(3)weatherforecastandlocationspronetoaccidents.
Informationshouldbecommunicatedatthecommunitylevelthrougheducationalseminars/technicaltrainingaswellasbeingpostedatthefisherscommunitycentreatthevillagelevelsuchasLotasdePescas,asiscurrentlydonebytheRFLPFieldManagers.
TheDistrictFisheryOfficerorExtensionOfficershouldbeinvolvedintheregularupdatinganddisseminatingofthisinformation.
Innovativewaystospreadinformationonweatherforecastandseaconditions(e.
g.
viaSMSmessagestoallfisherswithamobilephone)shouldbeexplored.
25.
Specificawarenessrisingcampaignsondivingrelatedrisksshouldbecontinued.
26.
Specifictrainingcoursesshouldbedesignedforboatbuilderswhoshouldbeobligedtoprovideinformationontheloadingcapacityofeachboattheyconstruct.
Thiscanbedonebyprovidingthemwithsimpletemplatesthatcanbeusedtopaintthemaximumnumberofpeopleorweightwhichtheboatcancarry.
27.
Specificawarenessraisingshouldbedonetoencourageboatuserstopracticeregularmaintenanceoftheirfishingboats.
18Forexampleoldfibre-glassmouldsownedbytheNDFAfromtheIndonesiantimeprovideopportunitiesfortheconstructionofmorestableandbetterboats.
3928.
Trainingcoursesonenginemaintenanceandrepair(level1–basic)forfishersshouldbecontinuedbeyondtheRFLPperiod.
Specificprogrammesforlevel2–advancedknowledgeonboatenginesrepairshouldalsobeundertaken.
TheFisheriesTechnicalSchoolprovidesanappropriateandopportuneplatformfortheirdevelopment.
29.
Themajorityofaccidentsatseaarecausedbysaltwatercrocodileattack.
Crocodilesareregardedassacredbeings(lulik)andaresubjecttorespect,tospecifictaboosandprescriptions.
Forthesereasons:i.
Inter-disciplinaryresearchshouldbedonebothonthebehaviouroftheanimalsandonthetraditionalbeliefsandpracticesassociatedwiththem.
ii.
AnyactiontomitigateagainstcrocodileattackshouldbeculturallysensitiveandtakeintoaccountnotonlythesocialstructureandtraditionalauthoritiesbutalsothecomplexsystemofbeliefsandritualpracticesinTimor-Leste.
iii.
Anykindofcoastallivelihoodslikelytostimulaterelocationofpeopletoareasnearlakes,mangrovesorotherareaswherethecrocodilesaremoreabundantbestronglydiscouraged,atleastuntilmitigationmeasurescanbeimplementedtoreducethenumberoffatalitiesfromcrocodileattack.
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(2011).
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41TableofboxesBox1.
Declineintheuseofsails.
17Box2.
Methodsusedintheassessment.
18Box3.
Typesofboatstested.
20Box4.
WoodenvesselsfromNorthAtauro.
20Box5.
BuburboatsfromMakili.
22Box6.
Typesofoutriggercanoe.
23Box7.
Detailsofconstructionanddesign24Box8.
WoodenoutriggervesselsfromNorthandSouthAtauro26TableoffiguresFigure1.
Thecrewwasunevenlydistributedintheboatduringthecoursesinordertocheckthestabilitywiththeassistanceofanexternalobserver.
19Figure2.
BambooreinforcementsshouldbeinstalledintheTunamodeltoimprovethesafetyoffishers.
29Figure3.
Typesofproblemsfacedatseabasedonrespondentsanswers(2011)30Figure4.
Typesofaccidentsatsea.
SeriesJanuary2010-October2012.
31Figure5.
Fatalitiesbytypeofaccident.
31Figure6.
Statusofthevictimsofaccidentscausedbyattacksfromwildanimals.
31Figure7.
Typesofaccidentsbyarea(SouthandNorthCoasts)32Figure8.
Locationofthevictimwhenthecrocodileattackoccurred.
33Figure9.
Timeofthedaywhentheaccidentoccurred.
33Figure10.
Timeofyearwhentheaccidentoccurred.
33Figure11.
Consequencesofthecrocodileattack.
33Figure12.
Causesofboatssinkingandcapsizing.
34Figure13.
Causesofboatsgoingmissingorequipmentloss34TableoftablesTable1.
Boatsproduced/handover2008-201127