Protecting the Country from Bio-invasion, a Case Study of Biofouling Management in Indonesia

The introduction of Invasive Aquatic Species (IAS) to new environments by ships has been identified as a major threat to world’s oceans and the conservation of biodiversity. The International Maritime Organization (IMO) has international efforts to tackle IAS by taking the transfer of non-indigenous organisms through shipping. In response to global oncerns about risks associated with ship-borne biofouling, the GEF-UNDP-IMO GloFouling Partnerships Project (GFP) was launched, involving several Lead Partnering Countries (LPC) to conduct national rapid status assessment concerning to the current situation of biofouling in LPC, including Indonesia. This rapid national status assessment in Indonesia is carried out to determine the essential needs for developing a future national biofouling strategy and related initiatives in Indonesia. This study and assessment include the marine sectors may act as pathway for IAS into Indonesia through biofouling, the resource and socio-economic risk from biofouling, the existing policy associated with biofouling management issues, the existing gaps, capacity needs and required reforms to manage biofouling issue in Indonesia. The assessment is carried by using the guidance provided by Glofouling guide.


Introduction
To some extent, biofouling may become invasive (bio-invasion) hence causes major threat to world's oceans and the conservation of biodiversity.A multitude of marine species, carried in ships' hulls (marine biofouling attached on ships' hull), may survive, and establish in a new environment, become invasive, outcompete native species, and multiply into pest [1].Recent research suggests that the attachment of fouling organisms on ships' hulls and other mobile marine structures is also a potential vector for the transfer of IAS [2].
The IAS problem begins when a biofouling species attaches on ship hull and being carried (hitching a ride) from one area to another area which has new ecosystem or habitat conditions.If the biofouling species has an invasive nature, it can adapt predominantly.As instance, it becomes a 1250 (2023) 012022 IOP Publishing doi:10.1088/1755-1315/1250/1/012022 2 predator in the new environment, in which, the ecosystem structure of the new environment is potentially changes and turns out to have a negative impact on the environment.The negative impact aroused can be in the form of loss of local species (biological loss), decreased aquaculture yields (economic losses), or even the emergence of new outbreaks [3].
As an archipelagic country, Indonesia has potential risk for the introduction and spreading of IAS since Indonesia has rich resources and raw materials and a target worlds' market, and thereby, numerous shipping activities in Indonesia either international or domestic shipping exist.Indonesia which is located between two continents (Asia and Australia) and two oceans (Pacific and Indian Oceans), has become an open country for shipping activities worldwide.Concerning the spread of biofouling, Indonesia becomes more vulnerable to the attack of IAS transported through biofouling attached on ships hulls.Indonesia has a lot of marine sectors that are susceptible for spreading of IAS carried by ship or other mobile marine vessels i.e., shipping, offshore oil and gas activities, fishing activities, marina and recreational facilities, aquaculture, offshore mining activities, buoys, etc. Indonesia has also rich biodiversity in its ocean waters which have a numerous marine species and habitats either in deep water or coastal water area [4,5].The biodiversity and marine habitat are very essential for marine ecological in Indonesia, and thereby, the sustainability and stability of the marine ecological must be protected.Any problem that potentially damages the marine biodiversity and environmental should be prevented including the damage caused by the introduction and spreading of IAS.The current paper discusses problems on identifying the types of biofoulings in Indonesian waters, possible threat, and efforts to manage it to avoid its spread become invasive.

Foreign Flagged Fishing Vessel
According to Indonesian government policy, foreign flagged fishing vessel is not allowed to operate and catch fish and other marine resources in Indonesian water.Foreign fishing vessel operating in Indonesian water can be categorized as illegal fishing and it must follow Indonesian law concerning to illegal fishing.Only foreign fish-carrying vessel is allowed to travel and arrive in Indonesia.However, the data regarding the detail information of foreign fish-carrying vessel in Indonesia is limited.More detail study is required to provide the data.

International Recreational Craft
There are several places for international recreational place in Indonesia.In Batam, there is marinas and recreational boating centres i.e., Nongsa point marina and resorts.In middle part of Indonesia, there are international recreational craft port and facilities in Bali Island and Labuan Bajo.Meanwhile, several ports also exist for international recreational craft in eastern part of Indonesia i.e., Bunaken, Gili Timur, Gili Trawangan, and Raja Ampat.More detail study is required since the report of international recreational craft including the type, number, port, cleaning history, etc. is limited.Some of international recreational ships visited in Indonesia are cruise vessel type which are shown in Figure 1.

Offshore Oil and Gas
Offshore oil and gas sector play an important role in Indonesia since Indonesia has a lot of offshore oil and gas resources.There are many offshore oil and gas areas in Indonesia i.e., Natuna Sea, Malacca Strait, Java Sea, Madura Strait, Makassar Strait, Banda Sea, and Ceram Sea.The offshore oil and gas area in Indonesia is shown on Figure 2.For each offshore area, there are several facilities including fixed offshore structure, Floating Production and Storage Offloading (FPSO), Floating Storage Offloading (FPO), Floating Production Unit (FPU), and Floating Regasification Unit (FRU).Many supporting offshore vessels (domestic and international vessels) operate on the Indonesian offshore oil and gas facilities as well as liquid oil and gas tanker.Both liquid oil and gas tankers are for domestic and export/import purposes.Therefore, the introduction and spread of IAS coming from offshore oil and gas sectors have high potential risk.More detail study is required to provide the detail data of mobile ship/platform arrival in Indonesia including the type, number, area, duration, region, etc.

KNOWLEDGE OF INTRODUCE SPECIES
In relation with IAS biofouling which may be able to be transformed by ships, a baseline study related to IAS transfer have been conducted by The Ministry of Transportation, Republic of Indonesia [11,12].The studies are carried out by investigating the water quality at main Indonesian international ports in relation with the containing of IAS which may carried by foreign ships, especially by ships' water ballast.Six main ports in Indonesia have been studied i.e., Batam Port, Tanjung Priok Port-Jakarta, Tanjung Perak Port-Surabaya, Soekarno Hatta Port-Makassar, Belawan Port-Medan, and Bitung Port-North Sulawesi, to investigate the aquatic species on water around the ports.Even though those studies were conducted for Ballast Water Management purposes, the containing of IAS biofouling at the Indonesian ports water area, that may be carried by ships' hull could be known by those studies.The most aquatic species found at the ports are reported in A review of the impact of biofouling in marine aquaculture was carried out by Fitridge et al. [13] and found out two types of fouling organism group found which have potential impact for shellfish; there is no fouling organisms affected to finfish.A comprehensive list of common fouling organisms found in Indonesia and their impacts in aquaculture are provided in Table 2.According to Table 2, the results are in correspondence with the study conducted by The Ministry of Transportation, Republic of Indonesia [12] which reported that Mollusca: Bivalvia was found at five of the six investigated ports in Indonesia.Bivalvia is found in medium to large-indexed amount at Tanjung Priok Port -Jakarta, Tanjung Perak Port -Surabaya, and Soekarno Hatta -Makassar.It is also found in less amount at Belawan Port -Medan and Sekupang Port -Batam.The highest indexed amount of Bivalvia is found at Tanjung Perak Port -Surabaya.
Another study in dealing with biofouling in Indonesia was conducted by Huhn et al. [14] investigating the transfer of Asian green mussels Perna viridis in eastern part of Indonesia.Naturally, this species is indigenous in the western part of Indonesia.However, Asian green mussels Perna viridis was found on hull body of two ships (belongs to PT PELNI) which voyage from western part to eastern part of Indonesia although the size of mussel body is lower than the size of common mussel body in western part.
Furthermore, other study related to potential invasive biofouling in Indonesia was also carried out by Huhn et al. [15].By investigating 66 different non-coral specimens in the fouling communities of a remote group of islands in Indonesian archipelago, none of the identified species was known to be invasive species but several species were cryptogenic and/or were considered to have a very broad global distribution range that can potentially include part, or all, of the Indonesian archipelago.For instance, one species, the ascidian Didemnum molle, was found to quickly settle and spread on available blank substrates, but not invasive.

National Policy Framework Relating to Biofouling Management and IAS
The study of national policy framework in Indonesia have been carried out involving the Ministry of Transportation of the Republic of Indonesia through Directorate General of Sea Transportation (Directorate of Traffic and Sea Transportation and Directorate of Marine Safety and Seafarers) as the representative of government.The special national legal regulation governing to biofouling management in Indonesia has not existed.The national regulations which may be associated with biofouling management and have been ratified by Indonesian government are ship's ballast water control and management and anti-fouling control.Indonesian government determine framework for preventing the spreading of IAS and biofouling management in accordance with IMO regulations by several national regulations i.e., Minister of Transportation regulation on PM 29/2014.According to PM 29/2014, an assessment and survey must be carried out to all ships (more than 400 GT or 24 m length) arrive, travel, and operate in Indonesian water area concerning to anti-fouling management and control.The assessment is carried out by a questionnaire or collecting data associate with anti-fouling or hull cleaning history of the ship.The personal data of the ship i.e., name of ship, distinctive number or letter, port of registry, gross tonnage, and IMO Number must be reported on the questionnaire.Moreover, an anti-fouling system controller under PM 29/2014 Annex 1 must be applied on the ship.The assessment or survey is allowed not to be carried out if the ship has an anti-fouling control certificate.[17]: "Anti-Barnacles control system is a type of paint protective coating, surface maintenance coating, or equipment used on board to control or prevent the sticking of unwanted organisms".
In addition, it is also stipulated in article 3 point 2: "Prevention of pollution sourced from hazardous goods and materials on board, as referred to in article 2 paragraph (2) includes antibarnacles' control (AFS)..." Coating of anti-fouling paint is stipulated in article 14, where the material on the paint used to coat the outside of the stomach under the water line should not contain tributyltin (TBT) compounds.The compound tolerance limit of TBT should not exceed 2500 mg of content (Sn) per kg of dry paint.Ship hull cleaning is also listed in article 17, point a, in which, the ship is obliged to book cargo record and in point 6 said to be: tank washing into in water do proper according to the procedures and manual arrangements of the vessel.

Existing Institutional Arrangement
In Indonesia, national policies that address issues related to the risk and impact of biofouling spreading do not exist or have not been developed.However, regulations regarding the use of anti-fouling systems have been implemented, for both international and national vessels.Ballast water system management regulations have also been implemented in Indonesia, both for ships operating internationally and nationally.All these regulations are set in the Decree of the Minister of Transportation of the Republic of Indonesia Number (KM).132 of 2019 concerning minimum service standards at the shipping safety technology centre.
The government fully supports efforts to control environmental pollution in the maritime area based on a presidential decree which initiates the state to participate in preventing biofouling in the ship's hull.Then the collaborated between the Directorate General of Sea Transportation of the Ministry of Transportation cooperates with the Maritime and Port Authority of Singapore (MPA) regarding the Workshop on the Ballast Water Management (BWM) in May 2017.The purpose of this cooperation is to support the Government of Indonesia's plan to implement the BWM Convention, with an emphasis on the background and provisions of the BWM Convention, PSC Guidelines, Sampling, Survey and Certification, BWM Management Plan, Exceptions, and Same Risk Area Concepts, as well as Approval and System BWM.Furthermore, the cooperation inters agency growth perennially to prevent the risk of IAS in Indonesia.

Technical Capacities
There was no specific regulation concerning to the biofouling management in Indonesia.However, in principle, Indonesian government have focused on the biofouling management issue.Several regulations associated with the control and prevention of marine environmental pollution have been ratified and implemented in Indonesia i.

Infrastructure and Facilities
Batam is well-known for its shipyards, which accept new construction and repair work for national and international ships.As a result, a review and site visit to several shipyard samples in Batam are required to determine the biofouling brought by national and international ships to Indonesia, including treatment from the shipyard when cleaning the biofouling on the ship's hull.Almost all shipyard in Indonesia have not been supported by special facilities and treatments to manage biofouling waste from ship cleaning since there is no exact and specific regulation which arrange the biofouling management in Indonesia.If the biofouling coming from hull cleaning is disposed into the sea, thus posing a risk of IAS.If the foreign biofoulings become invasive, they can cause serious impacts on Indonesia's marine environment.
For the time being, there is no policy in Indonesia governing the handling and management of biofouling in the national or international maritime sectors.This is because evidence of the presence of invasive aquatic species in Indonesia has yet to be discovered, making biofouling management less important.However, Indonesia has the potential for IAS distribution because it is a country dominated by oceans and frequently traversed by foreign ships from abroad.

Emergency Response Procedure
In Indonesia, national policies that address issues related to the risk and impact of biofouling spreading do not exist or have not been developed.However, regulations regarding the use of anti-fouling systems have been implemented, for both international and national vessels.Ballast water system management regulations have also been implemented in Indonesia, both for ships operating internationally and nationally.All these regulations are regulated in the

CONCLUSIONS
According to study concerning to current status and biofouling management in Indonesia, the following conclusion can be reported: Indonesia has many sectors that may act as transfer pathways for the introduction and spreading of IAS into the country through biofouling.Almost all pathways concerning to marine activities is potential for introduction and spreading of IAS.International shipping, oil and gas, port and harbour facilities including shipyard facilities, marinas and recreational facilities have medium to high risk for introduction and spreading IAS while domestic shipping and fishing vessel and aquaculture have low risk.Almost all resources and socio-economic at marine sector in Indonesia have risk for from biofouling and invasive aquatic species even there was no data/damage condition/phenomena reported because of marine bio-invasions.International and domestic shippin including fishing vessel, and oil and gas actifities have high potential risk to be affected by IAS.Further, Indonesian marine biodiversity can be threatened by IAS.
Basically, there was no specific regulation concerning to the biofouling management in Indonesia.However, in principle, Indonesian government have focused on the biofouling management issue.Several regulations associated with the control and prevention of marine environmental pollution have been ratified and implemented in Indonesia i.The existing gaps, capacity needs, and required reform, firstly, can be started by ship owners and operators who generally do not know the impact of biofouling on environmental problems, and thereby, the campaign for the risk of IAS biofouling need to be increased.Most of Indonesian shipyards may also do not really care about the proper procedure for cleaning the biofouling on a ship.Furthermore, the implementing of the biofouling management policy in Indonesia need to be attention is the handling of biofouling waste during the cleaning of biofouling in shipyard (It may be regulated by Ministry of Environment and Forestry).Moreover, the port state has not provided a regulation (not yet ratified) a regulation on biofouling.Therefore, research on biofouling in Indonesia is also still limited comparing to Indonesia which is rich in marine biodiversity.
The detail study and assessment should be carried out including national status assessment on biofouling management; original and IAS biofouling species in Indonesia; biofouling management includes the risks, policy, and its implementation; international biofouling regulations, national biofouling policy in other countries; and arrange the appropriate biofouling policy for Indonesia to provide the proper regulations to manage biofouling in Indonesia.

Figure 3 .
Figure 3. Ship Arrival for Domestic and International Ships in Indonesia 2020[10]

4 .
ARRANGEMENTS TO MANAGE AND CONTROL BIOFOULING RISKS 4.1.National Legal Instrument The study of national legal instrument in Indonesia have been carried out involving the Ministry of Transportation of the Republic of Indonesia through Directorate General of Sea Transportation (Directorate of Traffic and Sea Transportation and Directorate of Marine Safety and Seafarers) as the representative of government.National legal instrument to be used for determining the policy, decree, or regulation associated with biofouling management have been completed and strongly established in Indonesia.The structure of national legal instrument consists of (1) Decree of People's Consultative Assembly (Ketetapan MPR), (2) constitution (Undang-Undang)/UU), (3) government regulation (Peraturan Pemerintah/PP), (4) Presidential Decree (Keputusan Presiden), and (5) other implementing regulations i.e. (5.a.) Ministerial Regulations (Peraturan Menteri/PM), (5.b) Ministerial Decree (Keputusan Menteri/KM), (5.c.) Ministerial Instruction (Instruksi Menteri/IM) or (5.d) other local government regulation (governor/mayor decree/instruction).In Indonesia, the ratification of international statutory regulations (i.e. the regulations issued by IMO) commonly stated by presidential decree or ministerial decree.As instance, Indonesia has ratified IMO regulations i.e.International Convention of the Control and Management of Ships' Ballast Water and Sediment 2004 by Decree of President of the Republic Indonesia No. 132 Year 2015 (PP.132/2015) [16] and Anti-fouling Control, Ship Hull and Tank Cleaning by Regulation of Minister of Transportation of the Republic of Indonesia No. 29 Year 2014 (PM 29/2014) [17].
e.The Ratification the International Convention for The Control and Management of Ships' Ballast Water and Sediment, 2004 (Keppres RI No. 132 Th 2015).The national regulations regarding to anti-fouling control, ship hull and tank cleaning (PM.No. 29 Th.2019) has been regulated by Indonesian policy.Associated regulation for supporting those regulation is also issued (KM.Ministry of Transportation No.132 Th. 2019).The Indonesian Government try to do the best to prevent the introduction and spread of IAS Biofouling in Indonesia.

Table 2 .
[13]verview of common fouling organisms in marine shellfish culture[13] In general, there are three existing national policy and legal instrument concerning to ballast water management and IAS management i.e.:-Indonesia has ratified the International Convention of the Control and Management of Ships' Ballast Water and Sediment (Decree of President of the Republic Indonesia No. 132 Year 2015 on The Ratification the International Convention for The Control and Management of Ships' Ballast Water and Sediment, 2004 -Anti-fouling Control, Ship Hull and Tank Cleaning has been regulated in National Indonesian Policy (Regulation of Minister of Transportation of the Republic of Indonesia No. 29 Year 2014 on Prevention of Marine Environment Pollution (PM No. 29/2014)) -Certificate should be complied by ship concerning to standard of safety on sea including ballast water management & anti fouling control (Decree of Ministry of Transportation of the Republic of Indonesia No. KM. 132 Year 2019 [18] on Minimum Service Standards at the Shipping Safety Technology Centre (KM.132/2019)).The certification is made out by Directorate of Marine Safety and Seafarers, Directorate General of Sea Transportation, Ministry of Transportation, in accordance with PM No. 29/2014.National Policies and Regulation Republic Indonesian is explained by PM 29-year 2014, Ministry of Transportation of the Republic of Indonesia on the Protection and Prevention of Marine Environment from Pollution.Antifouling system control is stated in Article 1 no.19 7 e. the Ratification the International Convention for The Control and Management of Ships' Ballast Water and Sediment, 2004 (Keppres RI No. 132 Th 2015).The national regulations regarding to antifouling control, ship hull and tank cleaning (PM.No. 29 Th.2019) has been regulated by Indonesian policy.Associated regulation for supporting those regulation is also issued (KM.Ministry of Transportation No.132 Th. 2019).
Decree of the Minister of Transportation of the Republic of Indonesia Number (KM) 132 of 2019 concerning minimum service standards at the shipping safety technology centre.According to Indonesian regulations, ballast water management is divided into two types, namely Ballast Water Exchange and Ballast Water Performance.Ballast Water Exchange is obliging ships to exchange ballast water with a distance of 200 nautical miles from the nearest coastline and into at least 200 m, for certain cases if the ship does not get 200 nautical miles from the nearest coastline, ballast water exchange can be carried out at a distance of at least 50 nm from the nearest coastline with a depth of at least 200 m.Meanwhile, Ballast Water Performance requires ships to install ballast water management equipment that has been approved by IMO according to the G8 guidelines.This regulation must be implemented for all Indonesian flagged ships sailing internationally with certain criteria and the rules refer to the BWM Convention 2004.For ships sailing domestically, ballast water management rules refer to Law Number 17 of 2008 concerning Shipping, Government Regulation Number 21 of 2010 concerning Maritime Environmental Protection and Regulation of the Minister of Transportation Number 29 of 2014 concerning Prevention of Maritime Environmental Pollution.