Indonesia’s Decision to Share Data of Vessel Monitoring System with

Global Fishing Watch

Presya Ramadhan and Vinsensio Dugis

Departement of International Relations Universitas Airlangga, Indonesia

Keywords: Vessel monitoring system, Global fishing watch, Indonesia, Unreported and unregulated fishing,

Transnational organized crime

Abstract: This article examines Indonesia's decision to share data of Vessel Monitoring System (VMS) with Global

Fishing Watch (GFW). What are the considerations and what does Indonesia aim to achieve by this

decision? Based on a library research as a method and utilizing global governance, collective legitimization,

and rationalist international regimes as an approach for analysis, arguments in the paper are proposed as

follows. First, Indonesia's interest in sharing VMS data with GFW has been driven by a desire to increase

Jakarta’s legitimacy on establishing fisheries transparency regime at the global level. Second, with a global

legitimacy in hand, the Indonesian government could have a strong base to collectively pressing the global

community agree on identifying illegal, unreported and unregulated fishing (IUUF) activities as a form of

transnational organized crime (TOC). This is important for Indonesia as the continued presence of IUUF has

inhibited the Indonesian government to optimally gain benefits from potential marine resources on majority

of Indonesian territorial waters.

1 INTRODUCTION

As an archipelagic country with an area of about 5.8

million km2 (about 75 percent of the total area),

Indonesia has a large potential of marine resources,

ranging from fisheries, marine industry, marine

services, transportation, to marine tourism. It was

recorded in 2016, for example, Indonesia's capture

fisheries production reached 6,351,480,00 tons

consisting of fish, hard-skinned animals, soft

animals, other animals, and aquatic plants (Ditjen

Perikanan Tangkap, 2017). However, the potential

so far has not been utilized to the maximum so as

not to contribute significantly to the national

development yet. Instead of getting profits,

Indonesia has been harmed due to various illegal

fishing practices from both local and foreign

fishermen (Solihin, 2010). In addition, the close

geographical position of Indonesian waters with the

international ones has made it easier for the entry of

foreign fishermen into Indonesian waters to illegally

fish. Thus, Indonesian waters are vulnerable to

illegal, unreported and unregulated fishing (IUUF)

activities. Based on data from the Indonesian

Ministry of Marine and Fishery Affairs, the state

losses due to illegal fishing amount to 300 trillion

rupiah per year, equal to 25% of the total fishery

potential of Indonesia (Detik Finance, 2015).

IUUF activities occurring in Indonesian waters

are not just stand-alone, but they have been

suspected of being part of a systematic and

sustainable cross-border network (Wahjono, 2010).

Furthermore, these illegal activities have taken place

in many parts of Indonesian waters. In the western

part, they operate in Northern Borneo waters of

South China Sea area, the waters of Aceh, Straits of

Malacca, Pandan Waters and Sibolga Bay in North

Sumatra, the waters of Tambelan Island between

Riau and West Kalimantan in Strait of Karimata,

Natuna Sea in South China Sea waters, the waters of

Gosong Niger Island in West Kalimantan. While in

the eastern area they usually operate in the waters of

Papua (Sorong, Bintuni Bay, Fakfak, Kaimana,

Merauke, Arafuru waters), seas of Maluku and

Halmahera, Tual waters, Sulawesi sea, the Pacific

Ocean, Indonesian-Australian waters, and the waters

of East Kalimantan (Muhamad, 2012).

Indonesia has taken various efforts to

overcoming IUUF problems. Since 2003 the

Ministry of Marine and Fishery Affairs has

supervised the coordinates of fishing vessels in

Indonesian waters using a technology device called

Vessel Monitoring System (VMS). It is a form of

Ramadhan, P. and Dugis, V.

Indonesia’s Decision to Share Data of Vessel Monitoring System with Global Fishing Watch.

DOI: 10.5220/0010277100002309

In Proceedings of Airlangga Conference on International Relations (ACIR 2018) - Politics, Economy, and Security in Changing Indo-Paciﬁc Region, pages 355-362

ISBN: 978-989-758-493-0

355

surveillance system in the field of fishing and its

transporting using satellite fishing vessel monitoring

equipment and transmitter. This system is placed on

a fishing vessel to facilitate supervision of its

activities based on its position monitored at the

Fishery Ship Monitoring Center in Jakarta. In

addition, VMS also serves as an analysis material to

obtain information on the speed and patterns of

movement of the vessels and its previous near real

time data recording (Direktorat Sarana dan

Prasarana Pegawasan P2SDKP, 2008).

Under the leadership of President Joko Widodo,

Indonesia has been very loud of calling for the

eradication of IUUF globally. It has issued a number

of firm legal measures, including the drowning of

illegal fishing vessels, the moratorium on ex-foreign

fishing vessels, the prohibition of transshipment

(activities involving refrigerated cargo ships

collecting catches from several fishing vessels in the

ocean while waiting for transfers to ports), and

restrictions on the use of environmentally

destructive fishing gears (Kumparan, 2017). The

latest move has been the decision to share VMS data

with an international organization called Global

Fishing Watch (GFW). In 2017 Jakarta officially

started to distribute VMS data to GFW, the first

country in the world to share such data to the public.

This is a new breakthrough, encouraging global law

enforcement policies to free Indonesian waters from

illegal fishing practices, ensuring better fishery

management in the high seas, and supporting

transparent marine and fisheries management, by

using real time data provided by GFW (Kementerian

Kelautan dan Perikanan, 2014). With this decision,

public can see fishing activities in Indonesia freely

anywhere and anytime, as well as information on

fishing vessels, such as fishing gear, flags, ship

weight, and length and width of fishing vessels via

www.globalfishingwatch.org (KKP News, 2015).

What are the considerations and what does Indonesia

aim to achieve with this policy? This article explores

and seeks to finding the answers for such questions.

GFW is an international organization established

by Google, Sky Truth and Oceana. It provides a

visualization tool for the global vessels movement

activity based on the Automatic Identification

System (AIS) that allows the public to visualize

worldwide near-real-time fishing activities for free.

GFW was launched globally on September 15, 2016

on the sidelines of the 2016 Our Ocean Conference

(OOC) forum in Washington DC, USA. Initially, it

took the form of a consortium before being officially

recognized as an Independent NGO in April 2017

(Global Fishing Watch, 2017). GFW analyzes AIS

data collected from satellite, terrestrial, and research

vessels identified as commercial fishing vessels, to

demonstrate the movement of fishing vessels over

time. GFW implements a fishing catch detection

algorithm to classify fishing or non-fishing activities

(transit) based on ship movements such as speed,

direction and turning speed (Greeners, 2016).

2 METHODS AND APPROACH

FOR ANALYSIS

This article was based on a library research. Data

were gathered from books, journal, government

reports and laws, official reports from relevant

international organizations, and other related

information from mainstream media. In addition,

previous studies on the issue were also consulted.

The data gathered then further analyzed using global

governance, collective legitimization, and rationalist

international regimes as an approach for analysis.

There are two broad aims for any government to

opening data to the public and international

organizations. One is for improving the quality of

government’s services and role, by which

governments can expand public participation in

politics (Huijboom & Van den Broek, 2011; Schrier,

2014; Izdebski, 2015). Another aim is for

encouraging and enhancing more productive

collaborations with other countries, international

organizations, and multinational corporations. Since

the terrorist attacks of September 11, 2001, sharing

information and data has become a central part of

collective effort by many countries to detect terrorist

threats and plots (Jackson, 2014).

Sharing data at international level is considered

as means to build trust between states involved and

it will contribute to a long-term commitment and

strong international cooperation (Thu & Wehn,

2016). Seen from this perspective, therefore, sharing

data at global level can be considered as part of

global governance activity, defined by Karns,

Mingst and Stiles (2015) as collaborative efforts

undertaken by states and other legitimate

international agencies to dealing with various

international issues. These efforts come in the forms

of international laws or regulations, structures such

as formal international intergovernmental

organizations as well as improvisational

arrangements that provide decision-making

processes, information gathering and analytical

functions, dispute resolution procedures, and in

operational capabilities of technical managing and

ACIR 2018 - Airlangga Conference on International Relations

356

development assistance programs. Moreover,

instruments of global governance allow other non-

state actors to taking parts in solving global issues.

Parties involved in these collaborative instruments

hold an international collective legitimacy.

Collective legitimacy is an act whereby

legitimacy is associated with national policies and

other objects by multilateral organizations (Brewer,

1972). It is used by countries seeking to gain

national and international credibility. International

organizations have been considered and used as

agents to legitimize national status, policy and

action, while non-governmental organizations and

transnational social movements are regarded as

potential actors to fill the gap of global governance

legitimacy. A key aspect of legitimacy in the

international system is membership in the

international community, whose multilateral

interaction system and its reciprocity help validate

its members, institutions and regulations. Inter-

governmental consultations with NGOs can enhance

the legitimacy of international decision-making

(Karns, Mingst, Stiles, 2015).

It is within the context elaborated above that

states tend to act in a rational way. When the states

cannot maximize its interests because of low

international information flow and high transaction

costs in international politics, the state will be

seeking to create a regime to improve the flow of

information and reduce transaction costs (Mitchell,

1998). An established international regime can

increase the flow of international information in

various ways; create new information, act as a

repository for existing information, or create

standards that increase the comparability of various

information sources. The regime can also reduce

transaction costs by providing forums to discuss

issues, creating standard rules and procedures, and

establishing administrative structures (Barkin,

2006). Collaboration under certain agreed regimes

not only guarantees trust among states, but also

boosting international legitimacy for states involved,

enabling them to at least have a moral legitimacy

when calling international community to take certain

acts. Indonesia’s decision to share data of VMS with

the GFW is seen and understood within this

framework of analysis.

3 RESULTS AND DISCUSSION

3.1 Global Concerted Effort via GFW

As indicated previously, solving problems in the

field of fisheries, especially the eradication of IUUF,

has been one of Indonesia's priorities under

President Joko Widodo. Jakarta is highly aware that

the IUUF predicament is global in nature and

therefore requires a global concerted effort to get rid

of it. Collaborating with the GFW is one form of

reaching global concerted efforts. Within the context

of global governance perspective, the GFW is

considered as a form of governance that could assist

in combating illegal fishing. Indonesia and GFW

work together to identify, understand, and address

major fishery-related issues. With this partnership,

Indonesia became the first country in the world to

distribute VMS data for all Indonesian flagged

fishing vessels in the publicly available GFW data

platform. With the decision then all fishing vessels

that install VMS transmitters catching fish in

Indonesian waters can be viewed through the GFW

website http://globalfishingwatch.org/map/. By

2017, there were 367 illegal vessels successfully

seized by Indonesian authorities, many of which by

the help of information provided by GFW

(Tempo.co, 2017).

Prior to the collaboration with Indonesia, GFW

used AIS data to monitor the activities of the world's

fishing vessels. By using machine learning and

cloud computing, GFW analyzes the ship's

movement patterns to identify and display

commercial fishing activities. It also uses algorithms

developed for AIS technology, to process and

analyze data of Indonesia’s VMS. Movement

analysis of vessels is displayed through the GFW

public mapping platform, which then can be used for

many purposes such as tracking ships, monitoring

activities in Marine Protected Areas (MPAs), or

transshipment activities. More importantly, GFW

can disclose fishing activities closely related to

IUUF and human rights abuses. For example, in

2016, with the aid of GFW, the Associated Press

released a series of articles on the prevalence of

slavery in the Southeast Asian fisheries industries.

This reportage helped to uncover the slavery practice

in Benjin, Aru Islands of Maluku, where nearly

2,000 slaves were freed (Htusan & Mason, 2015).

Furthermore, Indonesia’s VMS data sharing has

enabled GFW to produce further rich data for

research purposes, of which one analysis was taken

to assess the economic impact of Indonesia’s efforts

in combating IUUF. It found that Indonesia's new

Indonesia’s Decision to Share Data of Vessel Monitoring System with Global Fishing Watch

357

fishery policy has reduced total fishing effort by at

least 25% and potentially resulted in a 14% increase

in catch, and a 12% increase in earnings. Equally, it

has led to a 30% reduction in the number of fishing

vessels operating in Indonesia. In 2013, Indonesia

was ranked 15

in the world for countries whose

region of exclusive economic zone were most

illegally entered by foreign vessels. The ranked were

down to 85

by 2016. The analysis of AIS data from

GFW also shows a decrease of 90% of ship

operating hours in Indonesia, most of which were

from China, Thailand, Taiwan and South Korea

(Cabral, et al., 2018).

Moreover, GFW is also capable of resolving

disputes related to IUUF. It has helped Indonesian

authorities able to verify the movement of the F/V

STS-50, the famous Patagonian and Antarctic

toothfish fishing hunters that has operated under a

number of different names and flags, blacklisted in

2016 by the Commission for the Conservation of

Antarctic Living Marine Resources (CCAMLR) and

INTERPOL Purple Notice for IUUF. Using the

analysis of the publicly broadcasted AIS signal from

the vessel, GFW tracked its movement beginning in

December 2017 in Southeast Asia, traveling back

and forth across the Indian Ocean, stopping in

Madagascar and Mozambique, until it was caught in

the waters of Indonesia in April 2018 (Long, 2018).

Facilitative role is one function usually played by

international organization (Abbott & Snidal, 1998),

and the GFW has also played this function by

partnering with various parties. It has signed an

agreement with the National Oceanic and

Atmospheric Administration (NOAA) to share data

that helps identify the location of ships in Indonesian

waters. This agreement has enabled data matching of

VMS usage in Indonesia for the NOAA satellite

based on the Visible Infrared Imaging Radiometer

Suite (VIIRS), which detects the ship's lights at

night (Undercurrent News, 2018). While most of the

ships that appear in VIIRS are not vessels required

by Indonesia to carry VMS (ships exceeding 30 GT),

some may be foreign ships that do not carry VMS as

it illegally hunts in Indonesian waters. Initial cross-

matching use found that 80% of VIIRS detection is

not registered in VMS Indonesia, so this indicates

many possibilities among which are ships that use

bright lights to catch fish. Combining the two data

sources will provide a more complete picture of

fishing activities in Indonesia. Vessels that catch fish

in Indonesian waters illegally using bright lights can

be detected at night through GFW. In addition, GFW

will have access to the VIIRS vessels detection data,

so that GFW may expand the number of report

records of fishing vessels in the database for public

analysis and monitoring purposes.

From the perspective of international collective

legitimacy --proposing that states seek collective

legitimacy for earning national and international

credibility-- Indonesia’s collaboration with GFW

can be interpreted as part of Jakarta’s strategy of

achieving international credibility in its call for

eradicating IUUF. Jakarta uses GFW as an agent

where GFW functions by facilitating the provision

of a website platform and opening of AIS and VMS

Indonesia data. With its own platform, GFW can

also make a country deploy and create transparency

of global fishing activities. Therefore, GFW is being

used by Indonesia with a view to creating

transparency in global fishery activities and

enhancing Indonesia's legitimacy in the international

eyes. As an important source in the pursuit of power,

the collaboration is one efficient option for

Indonesia to gain international legitimacy. Indeed,

one of the keys to legitimacy is through transparency

and in this regard, Indonesia has a mission in line

with GFW, creating transparency of global fishing

activities. By practicing transparency in fishery

policies globally, more equipment and eyes will be

monitored in the oceans, which make the less space

for illegal fishing vessels to hide. For example,

based on data from GFW, China, South Korea, and

Taiwan are the flagship state of vessels that most

often catch fish in the ZEE areas of foreign

countries. One source reveals that vessels with flags

from these countries have caught fish in more than

50 foreign ZEEs and have been involved in several

IUUF incidents on foreign ZEE (Cabral, et al.,

2018).

3.2 Fisheries Transparency Regime

In managing marine fisheries resources in a

transparent way, the Indonesian Minister of Marine

and Fisheries Affairs, Susi Pudjiastuti, has called the

international community join to achieve this goal.

The minister openly invites the international

community to publish information that the public

needs to know to get rid of the main obstacles of

sustainable fisheries resource management. As a

result, Indonesia has been awarded as a leading

country that encourages transparency in sustainable

fisheries management, through the implementation

of a list of license holders, ship permits, catch data,

export figures and imports of fishery products, tariff

calculations, to government regulations. In addition,

Minister Pudjiastuti has also been recognized as a

champion in the eradication of the IUUF.

ACIR 2018 - Airlangga Conference on International Relations

358

Indonesia's desire to establish a fishery

transparency standard is in line with Barkin’s (2006)

rationalist approach of the international regime,

stipulating that when states cannot maximize

interests because of the low international

information flow, they will seek to create a regime

to improve the flow of information, which Indonesia

has done by collaborating with GFW. The flow of

information here is related to the lack of

transparency in the current world's fishery industry.

In international relations, transparency contributes to

the regime's effectiveness and reduces the risk of

conflict (Choi & Jame, 2006). GFW provides the

necessary device that is a maritime ship portal and

data tracking worldwide from AIS and VMS, which

are technologies that must be installed and used by

fishing vessels whose function is to signal the ship's

position while in the ocean. What GFW has done is

bringing these technologies to the public so that the

public can monitor directly what is happening in the

ocean. By sharing VMS data with GFW, Indonesia

has added VMS data covering nearly 5,000 fishing

vessels. Therefore, the inclusion of Indonesian VMS

data to GFW databases may reveal fishing in vast

sea areas previously unseen.

In a rationalist approach to the international

regime, a regime can enhance international

information flows in various ways, such as creating

new information, acting as a warehouse for existing

information, or creating standards that enhance the

comparability of various information sources. In this

case, as an agent GFW able to perform all the

necessary elements as a regime. Therefore,

Indonesia should be suspected of using GFW as an

agent to create transparency standards in the fishing

industry. GFW able to act as a warehouse that

collects all available information, such as AIS data,

VMS and VIIRS-based satellite data from NOAA.

GFW then process the data to create new

information related to the world of international

fisheries. Furthermore, GFW is also developing

standards that enhance information resources. It

seeks to increase transparency on the movements of

fishing vessels in the world, which for this it

receives data of fishing vessels from both companies

and countries. AIS GFW data is obtained from a

partnership with two satellite data companies,

Orbcomm and Spire (ORBCOMM, 2018). While

VMS data is received from Indonesia, Peru and

Costa Rica (Global Fishing Watch, 2018).

The biggest obstacle to successful monitoring is

the reluctance of countries to surrender authority to

international regime representatives. This is still a

constraint for GFW and Indonesia. Currently only

three countries, namely Indonesia, Peru, and Costa

Rica are willing to provide VMS data open to the

public. For many countries, the difficulties are due

to domestic regulations that still limit the opening of

VMS data to the public and can only be accessed for

certain purposes such as for the use of fisheries

management, law enforcement, knowledge,

development, conservation and management

monitoring fisheries with appropriate legal

provisions. For example, the US requires VMS data

to be opened and collected only for investigation and

law enforcement. The obligations are governed by

the provisions of the US Seven Exclusion United

States Information Disclosure Act (Ambari, 2017).

The GFW partnership with Indonesia, Peru and

Costa Rica sets new standards for transparency at

sea. By distributing their VMS data through GFW,

Indonesia, Peru and Costa Rica have committed to a

level of transparency that fosters trust and keeps

them accountable for monitoring their vessels and

foreign ships in their waters. Although it is only

Peru and Costa Rica that follow in the footsteps of

Indonesia, in the future this certainly will attract

international attention. With Indonesia's success in

combating the IUUF, which has received much

praise from the international community, there will

not be much difficulty for Indonesia to encourage

other countries to commit to the transparency of

fisheries management. These analysis suggests that

with cooperation through GFW, Indonesia seeks to

create an international fisheries transparency

standard. Jakarta has taken bold steps to improve

transparency in the country's fisheries industry.

Therefore, Indonesia urges other countries to

participate in the transparency of their fisheries

management by encouraging all countries to join in

sharing their VMS data with GFW and initiating a

new era of transparency to end IUUF.

3.3 IUUF Activities as a Form of TOC

Since 2015, Minister Pudjiastuti has proposed and in

various international forums encouraged other

countries to agree on categorizing IUUF as one form

of TOC. At the World Ocean Summit in Bali in

February 2017, Minister Pudjiastuti called the

United Nations (UN) and the European Commission

to classify the IUUF as a TOC. The request was re-

raised at the UN 2017 Ocean Conference, calling for

a tough action to eradicate IUUF, identifying it as a

TOC activity. The argument is that by recognizing

IUUF as a TOC, the government would able to have

better access to the tools necessary to implement

cooperation that lead to the eradication of IUUF

Indonesia’s Decision to Share Data of Vessel Monitoring System with Global Fishing Watch

359

(Salim, 2015). Like terrorism, illegal fishing can

also be solved jointly across countries if categorized

as TOC. According to Minister Pudjiastuti, it is time

for the world to acknowledge that the practice of

IUUF is not just a fish theft but often used as a

vehicle for other extraordinary crimes such as

smuggling of narcotics and animals, human

trafficking, slavery, as well as violation of national

borders and sovereignty. For example, nearly 80%

of large-scale drug dispersal in Indonesia involves

the use of fishing vessels and large cargo vessels for

human trafficking and export of endangered species.

With a shared commitment globally, it will be easier

for Indonesia to eliminate such practices from

national waters.

The IUUF should be recognized as a TOC

because of its scale, complexity and diversity. It is a

profit-driven transnational crime, associated with

weak, incompetent and corrupt governance. Thus, its

conceptualization as a TOC makes efforts to

establish political priorities and identifies the actions

and resources necessary to solve the IUUF problem

more easily (Osterblom, Constable and Fukumi,

2011). The IUUF involves transnational

organizations from various countries, using flags,

crewmembers, and ships from various countries too.

That means that cracking down on the IUUF will

require enforcement from international organizations

such as the UN. Furthermore, it would allow

countries to get help from organizations such as

Interpol and the UN Office on Drugs and Crime

(UNODC) to eradicate IUUF (Parameswaran, 2017).

If the IUUF is recognized as TOC, then it will

provide a binding mechanism, something that is not

currently owned by the international community.

The binding mechanism will not only contain

unilateral responses but also help create the legal

regime necessary to combat IUUF (Rustam &

Sangadji, 2015).

4 CONCLUSION

The Indonesian government prioritizes the

eradication of IUUF because it has lost trillions of

rupiah due to the problem. In dealing with IUUF

problems, Indonesia has opted to collaborating with

GFW by distributing VMS data. This can provide

much needed insight into the world of commercial

fisheries. The initiative of GFW by making

information freely available to the public is a game-

changer. GFW's efforts can empower researchers,

governments, and communities to dig deeper into

fisheries data and find answers to questions such as

which seas are most vulnerable to illegal fishing or

ships from any country that breaks the rules.

Indonesia's strategy through GFW is seeking to

create global fisheries transparency regime by using

GFW as an agent to legitimize Indonesia's national

fishery policies. With transparency, vessels of good

behavior are valued, monitoring is cheaper and more

effective, and bad actors are clearer and can be

punished appropriately. Through greater

transparency, all parties can work together to find

out illegal operators that are easy to catch. The

benefits that Indonesia wants to get after working

with GFW is that the IUUF to be included in the

TOC category, by which would make it easier for all

countries to coordinate in handling illegal fishing. In

addition, it would allow countries to get help from

organizations like Interpol and UNODC to eradicate

IUUF.

ACKNOWLEDGMENT

This article is a reworking version based on a Master

Thesis of the first author submitted in 2018 to the

Department of International Relations Universitas

Airlangga, supervised by the second author.

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