DARWIN REEF FISH PROJECT

MANAGEMENT PLAN FOR THE MALDIVES GROUPER FISHERY

Marine Research Centre, Maldives & Marine Conservation Society, UK

September 2011

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MANAGEMENT PLAN FOR THE MALDIVES GROUPER FISHERY

DARWIN REEF FISH PROJECT/ MRC, MALDIVES & MCS, UK

SEPTEMBER 2011

1) INTRODUCTION

The grouper fishery management plan for Maldives aims to establish agreed steps to ensure that the fishery is biologically sustainable and that people who depend on the grouper fishery for their livelihood continue to get this benefit. The plan has been developed based on stakeholder consultations, field surveys and results of previous research conducted on the fishery. Research on the grouper fishery of the Maldives has been conducted by the Marine Research Centre on several occasions since the early 1990s (Van der Knaap et. al 1991, Anderson, et. al. 1992, Shakeel 1994, Sattar and Adam 2005) and more recently in collaboration with the Marine Conservation Society through the Darwin Reef Fish Project (Sattar et al. 2011). Furthermore, the Ministry of Fisheries and Agriculture has on a few occasions tried to establish schemes for long term continuous catch data of groupers, but these have proved ineffective both in terms of type of data collected and fishermen cooperation. Efforts to formulate and implement a grouper fishery management plan have been undertaken twice before, whereby recommendations for management had been made and the plans had been finalised. But these plans were never implemented.

This plan will be developed with active participation and joint decision-making about management measures by all stake holders, inclusive of non-fishery stakeholders such as enforcement agencies (eg. Marine Police, Environmental Protection Agency) and other related non-governmental organisations. Management measures to be implemented are based on fishery survey data combined with the knowledge and perceptions of fishermen and exporters. Hence the plan aims to bring about a participatory rather than a top-down approach.

The management plan will address a combination of multispecies management and ecosystem management measures, which will consider the fishery within the context of other uses of the marine environment, especially tourism. A precautionary approach will be taken so as to deal cautiously with risk, uncertainty and irreversibility of impacts. A combination of approaches such as size restrictions, fishery reserves and time area closures, quotas on catch and exports will be considered. The plan promotes adaptive management whereby it will be reviewed annually. This will include a workshop with all stakeholders to discuss scientific and other data and findings, issues. Management measures will then be revised if deemed necessary based on the findings of the workshop and studies.

2) OVERVIEW OF THE GROUPER FISHERY

The following sections outline the grouper fishery of the Maldives from the time of its development. Detailed overview of the fishery, export industry and stock status are provided as supplementary reports which include full data and analyses.

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2.1. Development of the fishery

The small scale fishery which used to exist in the Maldives developed into an export oriented fishery in the early 1990s, due to demand from Asian markets. The grouper fishery in the Maldives is a specialised fishery which solely caters the export industry. High demand and market prices led to an increasing interest in the fishery, and fishing for these high valued species was extended to all areas of Maldives, with exporters establishing their collection cages in different atolls, to purchase the catch from the different areas.

2.2. Species utilised

Table 1 below shows a list of main species utilized in the grouper fishery and export industry. Full list of all species which occurs in the Maldives is seen in the Grouper fishery review.

Table 1.Grouper species commonly utilised in the export industry

Scientific Name English Name Dhivehi Name Aethalopercarogaa Red mouth grouper Ginimasfaana Anyperodonleucogrammicus Slender grouper Boalhajehifaana Cephalopholisargus Peacock hind Mas faana Cephalopholisminiata Coral hind Kovelifaana Epinephelusareolatus Areolate grouper Thijjehifaana Epinephelusfasciatus Black tip grouper Raiygalhifaana Epinephelusflavocaeruleus Blue and yellow grouper Dhonnoofaana Epinephelusfuscoguttatus Brown marbled grouper Kasfaana Epinephelusmacrospilos Big spot grouper Fijjehifaana Epinephelusmerra Honey comb grouper Lahfaana Epinepheluspolyphekadion Camouflage grouper Kula faana Epinephelusspilotoceps Four saddled grouper Asdhaanufaana Plectropomusareolatus Squaretail coral grouper Olhufaana Plectropomuslaevis Black saddled coral grouper Kula olhufaana Plectropomuspessuliferus Roving coral grouper Dhonolhufaana Variolaalbimarginata White edged lyretail Kanduraiyhaa Variola. louti Moontail sea bass Kanduhaa

Table 2. Ranking of species exported, based on quantity of exports and values, (data from grouper proformas for 2010)

Ranking order based on quantity exported Ranking order based on value exported

Rank Fresh chilled exports Live exports Fresh chilled exports Live exports 1 C. argus E. fuscoguttatus C. argus E. fuscoguttatus 2 A. rogaa P. areolatus V. louti P. laevis

3 A. leucogrammicus P. laevis E. areolatus P. pessuliferus 4 V. louti C. miniata A. rogaa E. lanceolatus 5 E. areolatus P. pessuliferus P. pessuliferus E. spilotoceps 6 C. miniata E. lanceolatus E. fuscoguttatus E. macrospilos

7 P. pessuliferus A. rogaa C. miniata

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8 P. areolatus C. argus A. leucogrammicus 9 V. albimarginata A. leucogrammicus P. areolatus 10 P. laevis E. spilotoceps P. laevis 11 E. macrospilos E. macrospilos V. albimarginata 12 E. fuscoguttatus

E. spilotoceps

13 E. spilotoceps

E. macrospilos 14 E. merra

E. polyphekadion

15 E.polyphekadion

E. merra 16 E.flavocaeruleus

E. fasciatus

17 E.fasciatus

E. flavocaeruleus

Noticeable variations were seen, in rankings of species for all four categories (quantity of exports for both fresh chilled and live and value of exports for both fresh chilled and live). The above table has been presented in detailed figures in section 5.2 of the fishery review report. It should be noted that there is some degree of inaccuracy in the above table, due to errors in completing the proformas. However, these have now been discussed with the exporters and will be rectified in the future.

2.3. Areas and habitats utilised

Groupers in general occupy coral reef and coral rich areas. All species of groupers are seen to prefer areas with high coral density, with variation between species as to whether they prefer the deeper or shallower reef areas, caves and holes, inner reef areas or outer reef slopes. Groupers occur at depths of 0 to 200 m and occasionally even deeper, with most common occurrence of the majority of species being around 5 to 50 m. Table 3 shows habitat preferences and depths of occurrences for various species of groupers as reported in literature.

Table 3. Habitat preferences of commonly occurring species of groupers in the Maldives as reported in Fishbase (website accessed August 2011)

Species Depth Range Habitat Preference

A. rogaa 1 - 60 m, usually 3 - 60 m

Found in coastal reefs and lagoons, often silty habitat, or near caves and holes in reef.

A. leucogrammicus 1 - 80 m, usually 5 - 50 m

Inhabits coral rich areas and clear waters on lagoon and seaward reefs

C. argus 1 - 40 m,usually 1 - 10 m

Found in a variety of coral habitats, prefers 1 - 10m reef zone

C. leopardus 1 - 40 m, usually 3 - 20 m

Occurs in coral-rich areas of lagoon pinnacles, channels, and outer reef slopes

C. miniata 2 - 150 m Inhabit clear waters of coral reefs; more often found in exposed rather than protected reef areas

C. sexmaculata 6 - 150 m Found in rich coastal to outer reefs, usually along deep walls with caves, rich with invertebrate growth such as large sponges or soft corals

C. sonnerati 10 - 150 m,usually 20 - 150 m

Occurs in deep lagoon reefs and steep outer reef slopes; encountered in coastal areas with rocky substrates

E. areolatus 6 - 200 m Usually found in seagrass beds or on fine sediment bottoms near rocky reefs, dead coral, or alcyonarians in shallow continental

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shelf waters

E. caeruleopunctatus 2 - 65 m Occurs in rocky or coral-rich areas of deep lagoons, channels and outer reef slopes; usually in or near caves

E. fasciatus 4 - 160 m,usually 20 - 45 m

Outer reef slopes at depths below 15 m, also occurs in protected bays and lagoons as shallow as 4 m

E. flavocaeruleus 10 - 150 m Juveniles inhabit shallow reefs while adults are found on deeper reefs

E. fuscoguttatus 1 - 60 m Occurs in lagoon pinnacles, channels, and outer reef slopes, in coral-rich areas with clear water

E. macrospilos 1 - 30 m Found in lagoon and seaward reefs to a depth of atleast 44m

E. merra 0 - 50 m, usually 20 m

Very common in shallow lagoon and semi-protected seaward reefs

E. ongus 5 - 25 m Inhabits inner coastal and lagoon reefs, also in brackish waters where it occurs in ledges and caves

E. polyphekadion 1 - 46 m Usually found in coral-rich areas of lagoon and outer reefs; in caves and large crevices to swim through

E. spilotoceps 0 - 30 m Occurs in lagoon patch reefs, the upper slopes of channels, and reef margins

P. areolatus 1 - 20 m Lagoon and seaward reefs, in areas with rich coral growth.Most frequently encountered in channels along the reef front

P. laevis 4 - 100 m Inhabiting coral-rich areas of lagoon and seaward reefs. Encountered most frequently in channels and outer shelf reefs

P. pessuliferus 25 - 147 m Found in shallow lagoon and seaward reefs

V. albimarginata 4 - 200 m, usually 12 - 90 m

Inhabits seaward reefs

V. louti 3 - 250 m, usually 15 m

Seen in clear-water areas at depths below 15 m, and prefers islands and offshore reefs rather than continental shores

G. albomarginata 6 - 120 m, usually 15 - 120 m

Usually found on outer reef slopes and channels adjacent to deep water.

2. 4. Seasonality

The lack of long term continuous data on the grouper fishery makes it difficult to show long term trends in the fishery and seasonality of the fishery. However fishermen do report better fishing during the calmer periods (North East monsoon) which is possibly related to their method of fishing (i.e. visually aided snorkelling).

Seasonality in spawning is not well defined in the Maldives though fishermen report that a larger number of spawning aggregations are seen during the transition periods between the monsoons (i.e. in the months of June and July). Spawning aggregations are reported during the full and new moon of all months, though not always at the same site.

A look at reported export data for the last 5 years shows some seasonality in exports which could be correlated to seasonality in fishing (Figure 1). The dip in exports indicated by the red circle falls within the month of Ramazan for these years, which could be a possible reason for the decreased exports due to the inactivity of the fishermen during this period. As evident from the figure, the fishery is best for all years during the earlier months of year which correlates with the calmer season. However a second peak in the graph which falls during June-July falls during the transition period, which could possibly due to the high spawning activity reported during this period.

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Figure 1. Seasonality in exports of groupers as reported in the grouper proformas of the past 5 years

2.5. Fishing methods

The method of fishing used in the grouper fishery of the Maldives has changed over the years. Initially fishing was carried out using handlines and from small sized row boats or mechanized vessels within the home atoll of the fishermen. This later evolved to fishermen moving to other atolls from time to time and spending a week or two away from their own island. This was to cater to the export market and have easier access to the cages. Fishing is now carried out using snorkelling gear, where fishermen enter the water with their baited lines and a basket. Once a grouper is spotted the line is sunk in front of the grouper to attract its attention. Catch is collected in the basket, which once full is taken back to the vessel and unloaded. All fishermen on board the vessel except one will enter the water at different points on a reef, while the vessel remains in sight of all fishermen. At times fishermen are also dropped off quite far from each other, which is quite risky and dangerous. However, this method of fishing allows the fishermen to be quite selective with their target catch. While decreasing the chances of catching smaller ones (if one prefers) it is also quite risky for the stock at times when fishing is carried out without any management. Changes which have occurred to the fishery over the years are shown in table 2 in the grouper fishery review.

2.6. Socio-economic data

Information received from the atoll/islands offices showed that at the time of the survey in 2010 a total of 149 vessels from 10 atolls and 25 islands were carrying out grouper fishing. However, from these, the fishery is dominated by fishermen of about 8 islands. It is not possible to show the trends in socioeconomic data for the fishery due to the absence of continuous data from a socioeconomic aspect. Hence socioeconomic data was deduced from information collected from the fishermen during the survey trips for the current review. Results of these data show that on average each fishing vessel has 7 fishermen on board which gives and estimate of 1043 fishermen who are involved in the fishery. However, it should be noted that the majority of these fishermen are those who carry out the fishing on an occasional basis. Results of the survey also showed that an income of MRF 5,000 per vessel was earned per day of fishing, which gives an approximate estimate of MRF

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133,000 per vessel per month. This is the total value of the catch at the point of sale and does not take into account the outgoing expenditure such as fuel.

At present (August 2011) there are 7 main export companies involved in the industry, who together own 17 grouper collecting cages throughout the Maldives. Details of cage locations are given in the grouper fishery review. These export companies also have collecting vessels which, if the fishing is good travel to the areas where they do not have collecting cages and collect the daily catch of the fishermen from these areas. Sattar and Adam (2005) report 3 export companies and 11 cages at the time of their survey in 2003-2004.

Total income earned from grouper exports has been fluctuating in the years since the export oriented fishery started and peaked in 1994. As evident from figure 2, income earned from live exports which previously contributed the greater percent to total income is now on a decreasing trend. Additionally income earned from fresh chilled exports has been contributing the greater amount to the total income earned from grouper exports since the year 2003.

Figure 2. Value earned from grouper exports (1994 – 2010)

Figure 3. Unit price of grouper exports (1994 – 2010)

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Unit price of fresh chilled grouper exports was on an increasing trend from the year 1994 to 2003 (Figure 3). However this value has been decreasing since the year 2003. The unit price of live exports which although fluctuating is on an overall increasing trend. The higher value from fresh chilled exports, in light of the lower unit price for these exports indicate greater quantities of exports of the fresh chilled quantities. Similarly the lesser contribution to total value from live exports, in light of increasing unit prices indicate the decreasing quantities of exports of those species being exported live and in higher demand. Further details of these figures are seen in the grouper fishery review.

3) STOCK STATUS

3.1. Historical data

The first underwater surveys to investigate serranid diversity and abundance were carried out at the time of the start of the export industry, in 1993 at Gaagandu Island (North Malé) and Olhugiri Island (Thaa Atoll) using fixed transects measuring 240m2 (Sluka&Reichenbach, 1996).Sampling was carried out on the reef slope, reef crest and shallow lagoon. These surveys showed that Cephalopholis miniata and C. argus were numerically dominant while Epinephelus and Plectropomus species were observed more rarely. Gaagandu was re-surveyed by Sluka in 1997 (Sluka, 2000) and the results showed a shift in species composition and size distribution, but not in mean density.Sluka concluded that ‘the shift in size distribution from larger average size in 1993 to smaller averagesize in 1997 is likely due to the direct effects of fishing’. He also noted that ‘in 1997 no Plectropomid specieswere observed. These species are among the most highly sought after for the live fishfoodtrade. While these species were not abundant in 1993, they were regularlyobserved’.

Studies on grouper fisheries in the Maldives began in the early 1990s (Van Der Knaap et. al 1991, Anderson, et. al. 1992, Shakeel 1994). Shakeel (1994) made management recommendations which if they had been implemented and enforced at the time would have helped to conserve grouper stocks. Sattar and Adam (2005) provided further information and data on grouper fisheries and reviewed various methods of data collection then employed by the Ministry of Fisheries and Agriculture and shortcomings of these methods. The reports also provide details of various fishing methods employed at the time, as well as fish purchasing, processing and packing procedures in the export industry. Shakeel (1994) calculated the maximum sustainable yield of all groupers from the three habitats – shallow reefs, atoll basin and deep reef slopes – to be approximately 1800 tonnes/year (see section on Sustainable Yield under for further details) Further underwater surveys were conducted in 1998, by which time the grouper fishery had been operating for about 15 years. These surveys which weredone by a joint team from IUCN and Marine Research Centre (Rajasuriyaet al, unpublished dataset) completed a total of 104 surveys (transects) at 5 atolls: Goidhoo; Baa, North Malé, South Malé and Vaavu, with 3 to 6 sites surveyed at each atoll. Fish were counted during timed surveys of ‘approximately 15 minutes’ and most were estimated to cover 500m2.

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Beginning in 2010, ‘Fishwatch’ surveys of selected serranid species were carried out using the timed swim methodology on a range of reefs at depths between 0-25m. A total of 156 surveys (transects) were carried out at sites on 4 atolls: North Huvadhu, North Male, Baa and Haa Alifu (Darwin Reef Fish Project, 2011). The Fishwatch results were converted to an average per 500m2 in order that the results could be directly compared with the 2008 surveys (Figure 4).

Figure 4. Abundance of serranid species based on timed visual surveys carried out in 2008 and 2010

The Fishwatch surveys have been analysed in more detail and some of the key findings are summarised below:

• The most commonly encountered species were Cephalopholis argus (63% of surveys), Variola louti (47% of surveys) and Cephalopholis miniata (42%).

• Epinephelus lanceolatus was not recorded on any surveys (Sluka 1990s; Rajasuriya et al 2008: 104 surveys; Fishwatch 2010: 153 surveys), but this is probably because it occurs mainly in deeper water, beyond diving depth.

• After E. lanceolatus, the next most valuable (and therefore heavily targeted) fishery species are E. fuscoguttatus, E. polyphekadion and Plectopomus spp. E. fuscoguttatus and E. polyphekadion were not recorded at all during the 2008 surveys and were seen only very occasionally during the Fishwatch Surveys. They were both more numerous on House Reefs than reefs open to fishing, which suggests fishing has had a significant impact on populations of these high value species.

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Figure 5. Abundance of key grouper species in House reefs of resorts, MPAs and open access areas

• A similar picture emerges for Plectropomus areolatus, which was 7 times more abundant on House Reefs than Open Access reefs and P.laevis which was 3.6 times more abundant. However, abundance of P. pessuliferus and Variola louti on House Reefs and Open Access reefs was similar.

Biomass

The first estimate of grouper biomass and sustainable yield was made in the early 1990s, when Anderson et al (1992) investigated the fishery resources of the Maldives by carrying out exploratory fishing in 3 atolls (Shaviyani, Alifu and Laamu). They sampled sandy atoll basins and deep outer reefs (50-210m) using long lines and shallow reefs inside and outside the atolls to 40-50m using handlines.

The commercial species caught during the fishery resource survey included snappers, emperors, groupers, jacks and sharks. The proportion of groupers was highest in the shallow reef areas, comprising 10-30% of the catch. Analysis of the catch data enabled a calculation of standing stock (biomass) to be made from the atoll basins and deep outer reefs but it was not possible to follow the same analytical procedure for the shallow reef areas which were the most productive areas for groupers.

The first species-specific information on grouper biomass was obtained from the Fishwatch surveys carried out in 2010-2011. Fish length was estimated during underwater visual survey and this information then used to calculate biomass by converting individual length of each fish to wet weight (gm) using length-weight regression parameters. An overall estimate of biomass for each of the target species was obtained by calculating the mean biomass at each of 41 sites and then using these means to obtain an overall average across all sites at the 4 atolls surveyed. The results are shown in Table 4.

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Table 4. Average biomass by species, based on 156 surveys at 41 sites in 4 atolls (North Huvadhu, North Male’, Baa and HaaAlifu).

Average biomass gm/m2

(= t/km2)

Total biomass in Maldives, based on a reef area of

4,513km2 Anyperodon leucogrammicus 0.404 1821.05 Aeheloperca rogaa 0.062 278.56 Cephalopholis argus 0.629 2839.64 Cephalopholis miniata 0.488 2202.14 Cephalopholis sexmaculata 0.288 1300.31 Epinephelus caeruleopunctatus 0.080 358.86 Epinephelus flavocaeruleus 0.011 47.70 Epinephelus fuscoguttatus 0.157 708.43 Epinephelus polyphekadion 0.050 225.48 Epinephelus spilotoceps 0.034 155.19 Plectropomus areolatus 0.142 638.97 Plectropomus laevis 0.439 1978.95 Plectropomus pessuliferus 0.079 354.66 Variola albimarginata 0.034 153.75 Variola louti 0.434 1959.27 Other groupers 0.103 462.76 TOTAL 3.431 15485.71

*The most recent estimate of total reef habitat in the Maldives (Naseer& Hatcher, 2004) is derived from remote-sensing data and geospatial analysis and includes all reefs down to a depth of 25-30m.

A recent study by McClanahan (2011) reported that serranid biomass in the Maldives was 28kg per hectare, which is equivalent to 2.8 gms/m2 or 2.8 tonne/km2, lower than the figure derived from the Fishwatch surveys. McClanahan’s surveys were carried out by carrying out snorkelling surveys along 4 x 100m belt transects on each of 12 reefs in North Male’ atoll.

Sustainable yield

In the absence of biomass data for the shallow reefs, Anderson et al (1992) derived a figure for sustainable yield of reef fish from shallow areas in the Maldives from estimates of fish yields from comparable coral reef areas in other countries. The potential yield of reef fish was estimated to be roughly 1-2t/km2/year, giving a potential yield of reef fish for the Maldives of 7,000 t/year. This was based on estimated reef area of 3,500km2 (Anderson et al, 1992), rather than the most recent calculation of 4.513 km2.

Shakeel (1994) used the data from Anderson’s fishery resource survey to estimate the sustainable yield for groupers from the 3 habitats, as follows:

Shallow reef area 811 t/year Atoll basins 959 t/year Deep reef slopes 62 t/year Total 1800 t/year

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Reef stock assessment in the exploratory surveys was done using the Kulbicki method (Anderson et al., 1992). The percentage composition of groupers in these surveys was calculated and used to estimate the total biomass of groupers, which was used in Gulland’s formula to obtain the MSY of groupers (Shakeel, 1994). In this recent study, Cadima’s equation was used to convert the Fishwatch estimates of biomass to an estimate of potential yield (see box). Cadima’s equation applies to exploited stock whereas Gulland’s equation is used for unexploited stock (virgin biomass).

The results are shown in Table 5, where Maximum sustainable yield for the commercially important species are shown in tonnes/km2 and tonnes/year from the total reef area of Maldives

Cadima’s equation: MSY = 0.5 x (F+M) x Average biomass

M = Natural mortality and is assumed to be 0.2 for groupers*

* A study in the Seychelles (Grandcourt, 2005) showed estimates of annual instantaneous rate of natural mortality ranged from 0.13 yr-1for Epinepheluspolyphekadionto 0.28 yr-1for Variolalouti.

F = fishing mortality and is calculated from exports because of the lack of log book catch data

Whilst exports can be used as a proxy, actual catch will be higher because of post-capture, pre-export mortality. Sattar and Adam (2005) reported mortalities of 5-20% while groupers are being transported by boat to the fish cages and further mortality of 5-10% during the first 24 hours after arrival in the cages. It is probably safe to assume that, due to mortalities, catch is at least 20% greater than the amount of fish exported.

Total exports in 2010 (chilled + live)= 1,234,065 fish (source grouper export proformas)

Average weight (Sattar& Adam, 2005) = 0.77kg Therefore total weight of serranids exported = 950 tonnes Assuming 20% mortality then total catch = 1140 tonnes Fishing mortality (F) = catch / stock size (biomass)

= 1140/15485 = 0.0736

Therefore MSY = 0.5 x (0.0736 + 0.2) x Average biomass

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Table 5. Estimated maximum sustainable yield by species, based on 156 surveys during 2010-2011 at 41 sites in 4 atolls (North Huvadhu, North Male, Baa and HaaAlifu).

MSY gm/m2 (= t/km2)

MSY (tonnes/yr) in Maldives based on a reef

area of 4,513km2 Anyperodon leucogrammicus 0.055 249.12 Aeheloperca rogaa 0.008 38.11 Cephalopholis argus 0.086 388.46 Cephalopholis miniata 0.067 301.25 Cephalopholis sexmaculata 0.039 177.88 Epinephelus caeruleopunctatus 0.011 49.09 Epinephelus flavocaeruleus 0.001 6.53 Epinephelus fuscoguttatus 0.021 96.91 Epinephelus polyphekadion 0.007 30.85 Epinephelus spilotoceps 0.005 21.23 Plectropomus areolatus 0.019 87.41 Plectropomus laevis 0.060 270.72 Plectropomus pessuliferus 0.011 48.52 Variola albimarginata 0.005 21.03 Variola louti 0.059 268.03 others 0.014 63.31 TOTAL 0.469 2118.45

The MSY for all groupers is 2118 tonnes – higher than the earlier estimate that were based on estimates of biomass from other reef areas rather than the Maldives. It is important to note that these are first species-specific estimates of biomass and maximum sustainable yield for the Maldives and further surveys and analyses are required to provide more comprehensive information.

The results do, however, provide a benchmark for management and can be used to help formulate species quotas.

4) MANAGEMENT ISSUES AND CONCERNS

Biological

4.1. Vulnerability of groupers to fishing

Groupers are long lived, normally solitary and sedentary, protogynous hermaphrodites (change sex from female to male) which have late age-at-maturation and hence sex change. They live in coral reefs and stony environments, at depths of 0 to 200 m, occasionally 500 m (Heemstra et. al. 1993) and feed on fish and invertebrates such as large crustaceans and cephalopods. Groupers spawn and reproduce during full or new moon (species dependent) often in aggregations, sites for which at times are quite far from their home range. They tend to return to the same site repeatedly for spawning. This spawning activity may last a few weeks and at times may be spread

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over several months. This makes groupers highly conspicuous to fishermen and susceptible to being caught in large quantities. Sadovy (2002) highlights the case of Epinephelus striatus in the Caribbean where the number of spawning fishes declined and aggregations ceased to form with increasing fishing pressure. E. striatus is listed as endangered on the IUCN (World Conservation Union) Red List of Threatened Species (http://www.iucn.org, Website accessed, May 2011).

The sex change strategy, long life, aggregation behaviour and the fact that they take bait readily, makes grouper populations highly susceptible to overfishing. Coleman et al. (1996) studied the effects of fishing on spawning aggregations of groupers (e.g. Mycteropercamicrolepis) in the eastern Gulf of Mexico. Their results revealed changes to population demographics such as decreased sizes of fish caught and decreased sizes at sex change as well as decreased male to female sex ratios (Coleman et al. 1996).

4.2. Evidence of stock decline

Results of the current review show evidence of stock decline, both from the fishermen interviews and quantitative surveys. Although fishermen were divided in their opinions, most fishermen report a decline in catch quantities and size, especially for the high valued species. Fishermen report that larger individuals of the high valued species are now only caught during the spawning periods.

The trend in catch quantities has to be deduced through the export data as there an absence of continuous catch data. Export data shows a steady decline in numbers of exports of those species shipped live, while the quantity of fresh chilled exports has been on a steady increase for the same time period. These trends suggest that stock of species targeted for the live trade are declining and more difficult to catch as both fishermen and exporters report that those species which are exported live are preferred to those that are exported fresh chilled. However, the declining trend for live exports and the corresponding increasing trend for fresh chilled exports show that both fishermen and exporters are now taking whatever species they can get in the instance of a declining fishery.

Figure 6.Export quantities of fresh/chilled and live groupers (1994 - 2010) (Source: MOFA, Basic Fisheries Statistics)

0

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200,000

300,000

400,000

500,000

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1995

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Stock decline is even more evident when sizes at capture of the commonly exploited species are taken into consideration. Mean lengths of all the commonly exploited species are now lower than mean lengths reported in Sattar and Adam (2005). This strongly suggests that larger groupers have been selectively removed by fishing leaving a population of smaller individuals.

Figure 7. Comparison of mean length of groupers in the unexploited stock and exploited stock (Sample number in parenthesis’s are for total numbers of individuals represented by 11 species shown in the graph)

In addition to a decrease in mean lengths, 69% of individuals belonging to the commonly exploited species are now caught below their theoretical maturity lengths (see 4.3), thus removing them from the population before they have had the opportunity to breed and contribute towards population regeneration.

Further analyses and evidence of effects of the fishery on the grouper populations are shown in the grouper fishery review.

In light of all the above evidence, it is a good indication of stock decline and the need for management. However, currently there are no management measures in place and if the fishery was to continue unmanaged, this will worsen the situation.

4.3. High percentage of immature fish being taken

Sattar and Adam (2005) showed that 43% of all groupers then being caught were immature. The current review shows that for the most commonly exploited 10 species of groupers, 70% of these individuals are being taken prior to them reaching maturity. A species wise analysis of immature percent caught is shown in table 6below.

As evident from the table below, for 8 of these 10 species more than 50% of the catch is composed of immature individuals, while for 3 of the high valued species, namely E. fuscoguttatus, P. laevis, and P. pessuliferus, more than 90% of the catch is composed of immature individuals.

0

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20

30

40

50

60

70

Mea

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ngth

(cm

)

Species

Unexploited stock (1987-1991) (n = 201) Exploited stock (2003) (n = 2786) Exploited stock (2010-2011) (n = 12077)

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Table 6. Immature percent of key grouper species, in current (2010-2011) catch

Sample size Immature nos. Percent immature

A. rogaa 1254 932 74.32

A. leucogrammicus 1552 799 51.48

C. argus 2443 1947 79.70

C. miniata 1408 120 8.52

E. fuscoguttatus 497 479 96.38

E. spilotoceps 420 56 13.37

P. areolatus 693 390 69.99

P. laevis 1046 1034 98.85

P. pessuliferus 1897 1878 99.00

V. louti 898 797 88.75

*Note: Sample size in table indicates number of individuals for which lengths were measured

However, even with the catch of high number of smaller individuals, there are no management measures in place and exporters are now purchasing even the smaller individuals, in face of competition and market demand.

4.4. Lack of protection for spawning aggregations

Grouper spawning aggregations in the Maldives are well known by the fishermen and regularly targeted.Fishermen have reported that they target spawning aggregations of E. fuscoguttatus and P. areolatus, many of which are known by most grouper fishermen. A separate survey done through IUCN funding to identify reef fish spawning aggregations revealed that 87.5% of the interviewees were aware of the phenomenon of spawning aggregations and were able to identify a total of 175 sites where they have seen these aggregations. Such a targeted fishery, especially one which targets spawning aggregations of the species should be managed through various methods of fisheries management to ensure its sustainability. To date only few spawning aggregation sites have been protected. All other spawning aggregation sites are still open to the fishery and are regularly exploited, especially during the peak spawning periods.

4.5. Mortality

Sattar and Adam (2005) reports mortality of 5 – 20% of catch within the boat hold, prior to being sold to the cages. Once sold to the cage, there was a reported mortality of 5 – 10% during the first 24 hours and an average mortality of 10 – 30% during a month. However, these mortality rates would now differ as even live exports are being shipped out more frequently and via air freight.

Economic

4.6. Fishermen income and fisheries subsidies

Fishermen used to report issues with getting regular payments for the catch they sell to the exporters. However, this is no longer an issue as they are paid on a regular basis and are given a

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receipt upon sale, with which they can claim their due payment at either the office in Male’ or when the collecting vessel comes to the atoll. However, they still report that there are some companies who used to export previously, who still owe them large amounts of money.

Fishermen also have complaints regarding the Subsidy programme arranged through MOFA, where they claim that most grouper vessels were not getting the subsidies. Measures need to be considered which will take into account fishermen incomes and regulate the fact that they are paid and get their due benefits.

Social

4.7. Conflicts with tourism sector

Conflicts between the tourism sector and the grouper fishery and reef fishery in general has always been an issue of concern raised by the fishermen. Fishermen feel that tourism is the main beneficiary of all the management measures which have been taken to date, such as protected dive sites and ban on shark fishing. There have been instances where fishermen have been chased away from their fishing spots by either boats of tourist resorts or safari vessels (even if the sites are not declared protected sites). This issue arises mainly due to the lack of clear agreements regarding fishing versus diving and the lack of awareness to the tourism sector about the importance of grouper fishery for livelihoods of these fishermen. Fishermen on the other hand need to be made aware of the ecological importance of species such as sharks, groupers and other marine biodiversity, so as to stress the fact that not all management measures are implemented for the benefit of the tourism industry.

Governance and monitoring

4.8. Lack of regulations

Various recommendations for regulatory mechanisms have been made in the past but not implemented due to lack of priority and resources. To date, two workshops have been held to formulate and implement a grouper fishery management plan, but no action has been taken since and no regulations have been formulated or implemented. Although Maldives has approximately 33 sites declared as Marine Protected Areas, these are a small percent of the total reef area of the Maldives in (see 4.10) and are not managed or monitored effectively. Issues with enforcement and implementation arise due to unclear mandates of the various government agencies who are involved in identifying, declaring and monitoring these sites.

4.9. Lack of community ownership

Currently, marine resources are not owned or managed by local atoll communities. If catch declines in one area, fishermen will always move on to new fishing grounds. The lack of ownership/responsibility could encourage overexploitation.

4.10. Fishery reserves small and enforcement weak

Fishery reserves are an effective management tool, especially in conserving the breeding and juvenile stock of a population. Fishery models suggest that reserve coverage of between 20% and

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40% prevent stock collapse in most cases (Rodwell and Roberts 2004). Over 30% of the Great Barrier Reef is in no-take marine reserves.

MPAs in Maldives (inclusive of tourist resort house reefs which are “unofficial” (but effective) are small (4.3% of total reef area) and there is no proper enforcement.

No fishing zones around tourist islands are more numerous (approximately 100 to date and increasing) and each covers an areaof approximately 300m in diameter centred on the resort. These sites are wellenforced and monitored by the tourist resorts.

4.11. Data deficiencies

Although MOFA initiated logbooks for the grouper fishery in 1990s, catch was not being reported by the fishermen on a regular basis. The lack of accurate long-term catch and effort data for individual species from specific locations has been a major hindrance in monitoring the status of the fishery. Fishermen regularly move from atoll to atoll, depending on catch rates within the atoll. Hence the absence of site specific data makes it very difficult to see the changes which have occurred to the populations of groupers within the individual atolls

Grouper collecting cages are registered when they are initially set up in an area. However these registrations were not renewed annually, which makes it impossible to get an idea of number of cages operational each year, since the start of the fishery. Hence data on numbers operating and their location may be inaccurate.

Trends in the grouper fishery and grouper stock status has to date been deduced from the export data of groupers. However till 2003, grouper exports were reported as either fresh chilled or live exports. Hence the lack of species specific data till then made it difficult to see the effect of the fishery on the individual species. The grouper proforma introduced in 2003 aimed at collecting species specific quantity and value data for each shipment of grouper exported from the Maldives. However, inaccuracies in reporting of exports due to confusion over names make it difficult for us to deduct accurate numbers of each species exported.

4.12 Lack of trained capacity

Lack of trained staff and capacity as well as absence of identification guides has made it difficult for us to collect species specific data through fishermen or exporters. Fishermen from different areas are known to have different names for the groupers and this need to be harmonised to establish an accurate data collection system. Additionally, if fishery data is to be collected through fisheries officers, training will be needed to ensure they can tell the difference between species and understand the importance of length frequency sampling and its contribution towards conservation and management

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5) MANAGEMENT OBJECTIVES, STANDARDS AND MEASURES

The overall aim of management is to establish an ecologically and economically sustainable grouper fishery in the Maldives.

The plan incorporatesspecific goals and objectives that address biological, social and economic dimensions of the fishery. The objectives are measurable and feasible and if agreed will bring about the desired outcome of a sustainable grouper fishery. Indicators such as stock size or numbers of fish being exported are used to monitor whether the objectives are being achieved.

In most cases the management objectives and proposed measures are at species level because it is clear there are considerable differences between the species with regard to their natural abundance and vulnerability to fishing pressure. There is also a need to manage stocks at an atoll level in order to ensure that local depletion does not occur.

The biological goals 1 and 2 are considered the highest priority for the future sustainability of the fishery.

Goal 1: Biological

Protect the reproductive capacity of the grouper stock by conserving existing and potential spawning stock.

Objective 1:Limit the percentage of immature fish in the catch to less than 20%.

The most recent analysis revealed that 70% of all groupers that are exported are immature. This situation is unsustainable and it is clear that the number of immature fish being taken needs to be drastically reduced. The target is to reach a level below 20% for every species, in order to ensure that the majority of fish have a chance to breed at least once before being caught. Size limits specified in table 7 below will be circulated to fishermen and exporters and random samples will be collected and analysed to ensure that this target is met. For all species, it is banned to exploit any individual below the specified size limit.

Table 7. Finalised Size limits for the different grouper species.

Species Weight (gm) Length (cm)

Aethaloperca rogaa 300 27.0

Anyperodon leucogrammicus 300 31.0

Cephalopholis argus 300 26.0

Cephalopholis miniata 300 26.0

Cephalopholis leopardus 250 20.0

Cephalopholis sexmaculata 250 20.0

Cephalopholis sonnerati 250 20.0

Cephalopholis urodeta 250 20.0

Epinephelus areolatus 500 30.0

Epinephelus caeruleopunctatus 500 32.0

Epinephelus fasciatus 250 25.0

Epinephelus flavocaeruleus 500 30.0 Epinephelus fuscoguttatus <500 and between <31 and between

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>1500 to <4000 >45 to <63

Epinephelus macrospilos 500 32.0

Epinephelus ongus 300 28.0

Epinephelus polyphekadion 450 31.0

Epinephelus spilotoceps 300 28.0

Plectropomus areolatus 600 35.0

Plectropomus laevis 600 35.0

Plectropomus pessuliferus 600 35.0

Variola albimarginata 500 25.0

Variola louti 500 31.0

Objective 2: Protect grouper spawning aggregations whenever or wherever they occur.

Targeting of spawning aggregations is widely practiced in the Maldives and is known to be one of the most common causes of stock collapse in other parts of the world. While several options were considered at the workshop, the option which was favoured most was the permanent closure of certain sites for a declared period of time, whereby the site would be closed for all activities. Hence the following sites will be closed for a period of minimum 3 years, to all activity (inclusive of tourism activities). A key indicator for this would be absence of fishing activity at spawning aggregation sites. Surveillance of these spawning aggregation sites would require action & commitment from the Marine Police.The sites would be monitored during the closed period for changes in aggregation sizes. The first set of sites to be protected with immediate effect are listed below and shown in Figures 8 to 12.

Figure 8. Dhiffushi Kanduolhi – North Male’ Atoll

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Figure 9. Aligau kandu – Lhaviyani atoll

Figure 10. Boamas kandu – Vaavu Atoll

Aligau

Maduvvari

Fulidhoo

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Figure 11. Bodu and Kuda kanduolhi – Meemu Atoll

Figure 12. Kudahuvadhoo kanduolhi – Dhaalu Atoll

Veyvah

Mulah

Muli

Kudahuvadhoo

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The status of grouper spawning aggregation sites will be reviewed at the Annual Grouper Management Workshop and sites may be proposed for removal or addition to the protected list as deemed appropriate.

Goal 2

Economic: Maximise incomes and returns from grouper fishing

Objective 1. Reduce post-harvesting mortality to less than 5%.

Post harvesting mortality leads to economic losses and additional pressure on resources. Current mortality may be in the region of 20% or more and the target is to work towards lowering this rate to 5%. Best practice guidelines will be produced and mortality monitored through fishing and cage logbooks

Goal 3

Social: Equitable sharing of reef resources with private (tourism) sector

Objective:Reduce/ eliminate conflicts between tourist boats and fishing boats regarding use of areas of reef that are ‘open access’.

Draft protocols will be made and followed up with the Private Sector and Ministry of Tourism.

Summary of key management measures

1. Minimum size regulations, based on the theoretical size at maturity of each species. The ‘safe limits’ for each species are already known and could be relatively easily introduced and monitored. Information including photographs of all species with minimum size will be produced and all fishing boats / fish cages would have to carry this guidance and adhere to it.

2. Protect grouper spawning aggregations through permanent closure of certain sites to all activities for a minimum period of three years.

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PROPOSED GROUPER FISHERY REGULATIONS 2011

1) These regulations will apply to commercial fishing for groupers throughout the Maldives.

ESTABLISHMENT OF GROUPER FISHERY MANAGEMENT COUNCIL

2) There will be established a Management Body to be called the Maldives Grouper Management Council

3) The Management Council will comprise the following members: a) A Chairperson b) Fisheries Management Agency representative c) MOFA Legal representative d) Director of MRC/or Head of MRC at the time e) Research officers with special knowledge of the Grouper Fishery (minimum 3,

maximum 5) f) Elected fishermen representatives (6 representatives) g) Elected exporter representatives (4 representatives) h) Maldives Customs Services (2 representatives) i) Marine Police/Maritime Agencies (2 representatives) j) Ad-hoc specialists/advisors on invitation of Council

4) The role of the Management Councilwill be to: a) Review technical and other reports pertaining to the Grouper Fishery.

b) Review the outcomes and recommendations made at the Annual Grouper Fishery Stakeholder Workshop.

c) Make decisions on management measures in response to the outcomes and recommendations from the technical reports and Stakeholder Workshops.

d) All management measures should be approved by the Fisheries Advisory Board

5) The Management Council will meet biannually or more frequently if needed.

REGISTRATION AND LICENCING

6) All operations in the Maldives relating to the commercial harvest and sale of groupers will be registered and licensed. This includes:

a) Fishing vessels b) Sea cages/ vessels used as holding facilities /collecting vessels which travel from

one Atoll to another c) Land-based holding / processing facilities d) Export companies

7) Licences will be renewed annually. All holding facilities which do not renew their license should be asked to cease their operations and close down/remove the holding facilities. All fishermen who do not renew their license should not be able to sell to exporters

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8) Conditions will be applied to the licences. These conditions will be formulated by the Grouper Management Council and may be changed from time-to-time in response to management needs, agreed through the adaptive management approach. The conditions will include, but not be confined to, the following:

a) Adherence to regulations concerning the size of fish that can be taken.

b) Adherence to regulations concerning the quantity of fish that can be taken by the licence holder from different locations over a specified time.

c) Adherence to regulations concerning spatial and temporal closures

d) Completion of a daily log of fishing activities carried out on the grouper fishing vessels.

e) Completion of a daily log of stock movement in/out of the sea cages.

f) Completion of proforma for each export consignment of grouper.

g) Adherence to specified welfare and vetinerary standards at all stages in the transport, holding and export of groupers

h) Submission of all required forms prior to export so as to monitor exports, catch and vessels

i) Adherence to environmental regulations / best practice guidelines issued for the establishment of sea cages

OFFENCES AND PENALTIES

9) Any person who contravenes any of the provisions of the Grouper Fishery Regulations will be liable the following penalties for the following actions

Purchase of fish below minimum size limits:

1st offence - fine of MRF 50,000 and release (or confiscation) of smaller individuals in cage

2nd offence - fine of MRF 100,000 and release (or confiscation) of smaller individuals in cage

3rd offence - revoke license for 6 months and ban purchase from company cages for the duration

Export of fish below minimum size limits: 1st offence: value of shipment based on customs invoice and confiscate shipment

2nd offence: value of shipment x2 based on customs invoice and confiscate shipment

3rd offence - revoke license for 6 months and ban purchaseand exportfrom company cages for the duration

Fishing from a protected site

1st offence - fine the captain of vessel by MRF 10,000 and release healthy fish and confiscate remaining

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2nd offence - fine the captain of vessel by MRF 20,000 and release healthy fish and confiscate remaining

3rd offence – Send case to trial

11. The implementation of the Management plan would be lead by the Fisheries Management Agency of the Ministry of Fisheries and Agriculture. Table 8 outlines the additional agencies/authorities that will play a key role in the implementation of the plan and their responsibilities.

Table 8: Agencies/Institutions involved in the implementation of the grouper fishery management plan and their responsibilities

Topic Activity Purpose Responsible groups / agencies

Monitoring of fishery:

Catch and export records

Logbook training

Monitor and record catch

To ensure data on resource use is recorded in compliance with agree national and international requirements

To ensure size of individuals caught in the fishery falls within the set size limits

o Grouper fishermen o Island Councils o Grouper exporters o Marine Research Centre o Fisheries Management Agency

Data entry training

Monitor and record exports

Validation of catch in compliance with national and international requirements

o Grouper exporters o Maldives Customs Services o Marine Research Centre o Fisheries Management Agency

Cage and fish catch sampling trips

On-going monitoring to collect data on size and numbers of fish being caught.

o Marine Research Centre

Resource surveys Protected area surveys

To monitor size and species composition of grouper spawning aggregations in the designated protected areas

o Marine Research Centre

Gonad sampling of groupers caught in the fishery and groupers at

To identify age and/or size of fish at maturation (both female and male).

o Marine Research Centre

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protected areas

Surveys of grouper stock through ‘Fishwatch’ and National Coral Reef Monitoring Prog

On-going monitoring to collect data on abundance, size and distribution of groupers

o Private Sector: carry out in-water surveys.

o Marine Research Centre: co-ordination, data analysis &reporting

Awareness & outreach

Design and produce awareness materials / messages

To produce a range of materials / messages that will explain the purpose and benefits of managing the grouper fishery

o Marine Research Centre o Ministry of Education

Deliver outreach programme to target audiences

To ensure fishermen, public and other stakeholders are fully aware of the Management Plan and regulations.

o Marine Research Centre o NGOs o Island Councils o Ministry of Education o Ministry of Tourism

Enforcement & surveillance

Surveillance of Fishery Protected Areas yes I think catch & exports is covered in first component.

To ensure that the Fishery Protected Areas are closed to both extractive (fishing) and non-extractive (e.g. diving) activities.

o MNDF o Coast guard o Marine Police o Atoll Councils o Island Councils

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Darwin Reef Fish Project (2011) Preliminary analysis of Maldives grouper populations and sustainable yield. DRFP (Marine Research Centre/Marine Conservation Society (UK))

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Heemstra, P.C and Randall, J.E. (1993) FAO species catalogue.Vol. 16.Groupers of the world (Family Serranidae, Subfamily Epinephelinae).An annotated and illustrated catalogue of the grouper, rockcod, hind, coral grouper and lyretail species known to date. Rome, FAO. 382pp, 522 figs with 31 colour plates

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Shakeel, H. (1994) Grouper fishery: Benefits, threats and Challenges, Rasain 14, Ministry of Fisheries, Agriculture and Marine Resources, Maldives, 211pp

Shakeel, H. and Ahmed, H. (1996) Exploitation of Reef Resources, grouper and other food fishes in the Maldives, Workshop on Integrated Reef Resources in the Maldives, BOBP/REP/76, 312pp

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Sluka, R. D. (2000).. Grouper and napoleon wrasse ecology in Laamu Atoll, Republic of Maldives: Part 3. Fishing effects and management of the live fish-food trade. Atoll Research Bulletin No 493.

Sluka R.D. and Reichenbach, N. (1996) Grouper density and diversity at two sites in the Republic of Maldives. Atoll Research Bulletin No 438.

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Maldives. Reef fish Research and Resources Survey. B. O. B. Programme. Madras, Bay of Bengal Programme/ FAO: 60 pp.