PENGELOLAAN HIU APPENDIKS II CITES DI INDONESIA: PENDEKATAN TERPADU ASPEK BIOLOGIS, TATA KELOLA, DAN KETERTELUSURAN PERDAGANGAN

Abstract

Hiu merupakan predator puncak yang memiliki peran ekologis penting dalam menjaga struktur dan fungsi ekosistem laut, namun memiliki kerentanan biologis tinggi terhadap tekanan eksploitasi karena karakteristik pertumbuhan lambat, kematangan seksual terlambat, fekunditas rendah, dan interval reproduksi panjang. Dalam skala global, kelimpahan hiu dan pari oseanik telah menurun 71% sejak 1970, dengan lebih dari sepertiga spesies Chondrichthyan terancam punah. Kondisi ini berkaitan erat dengan tingginya nilai ekonomi berbagai produk hiu dalam rantai perdagangan internasional yang telah membentuk jaringan perdagangan yang kompleks. Convention on International Trade in Endangered Species of Wild Fauna and Flora (CITES) berperan penting memastikan perdagangan internasional spesies liar tidak mengancam kelestariannya, terutama melalui pencantuman spesies hiu dalam Appendiks II yang mensyaratkan perdagangan berdasarkan prinsip keberlanjutan, legalitas, dan ketertelusuran. Indonesia menempati posisi strategis sebagai negara dengan pendaratan hiu dan pari terbesar di dunia, namun menghadapi tantangan serius dalam tata kelola perdagangan hiu. Ketidaksesuaian substansial antara data pendaratan dan data ekspor, lemahnya granularitas terminologi produk, serta sistem pengumpulan data yang belum memadai menunjukkan bahwa persoalan pengelolaan hiu Indonesia tidak hanya terletak pada tekanan eksploitasi, tetapi juga pada kualitas data, struktur rantai pasok, dan kapasitas pengawasan perdagangan. Pangkalan Pendaratan Ikan (PPI) Tanjung Luar di Nusa Tenggara Barat merupakan salah satu basis penting perikanan hiu Indonesia dengan dominasi tangkapan hiu sutra sebagai spesies yang telah tercantum dalam Appendiks II CITES. Penelitian ini bertujuan mengidentifikasi kondisi eksisting perikanan hiu di PPI Tanjung Luar beserta komposisi spesies yang didaratkan, status konservasinya menurut International Union for Conservation of Nature (IUCN), dan status perdagangannya menurut CITES, sekaligus mengevaluasi status stok hiu sutra menggunakan Length-Based Spawning Potential Ratio (LB-SPR); menilai kesenjangan pelaksanaan kewajiban CITES pada dimensi transposisi hukum, mandat kelembagaan, dan instrumen operasional; memetakan variabel strategis yang menentukan efektivitas tata kelola menggunakan Cross-Impact Matrix Multiplication Applied to Classification (MICMAC); serta menyusun prioritas kebijakan menggunakan Analytic Hierarchy Process (AHP). Perikanan hiu di PPI Tanjung Luar dijalankan oleh armada rawai berukuran 9 sampai 30 GT yang mengoperasikan rawai tuna, rawai hanyut, dan rawai dasar. Hasil penelitian menunjukkan 52 spesies hiu dengan total 20.809 individu tertangkap selama periode penelitian, didominasi oleh Carcharhinus falciformis, Galeocerdo cuvier, Prionace glauca, Sphyrna lewini, dan Carcharhinus brevipinna. Lima spesies dominan tersebut seluruhnya termasuk dalam Appendiks II CITES, dengan sebagian besar berada dalam kategori Vulnerable dan Near Threatened menurut IUCN. Analisis LB-SPR terhadap 9.598 individu hiu sutra menunjukkan Spawning Potential Ratio sebesar 36% untuk betina dan 31% untuk jantan, mengindikasikan kondisi stok masih di atas batas hati-hati biologis namun belum mencapai tingkat target yang aman secara kehati-hatian. Analisis kesenjangan menunjukkan kesiapan implementasi Indonesia tidak merata, dengan rata-rata skor transposisi hukum tertinggi, diikuti mandat kelembagaan, dan terendah pada instrumen operasional. Enam kewajiban berada pada kategori kesenjangan rendah, delapan kewajiban kesenjangan sedang, enam kewajiban kesenjangan tinggi, dan empat kewajiban kesenjangan sangat tinggi, terutama pada penanganan spesimen hidup pasca sitaan, transparansi informasi publik, perdagangan dengan negara non-Pihak, dan protokol verifikasi lintas negara. Analisis MICMAC kemudian mengidentifikasi kapasitas dan tata kelola Management Authority, sistem data dan ketertelusuran, mekanisme Legal Acquisition Finding berbasis risiko, fungsi Scientific Authority untuk Non-Detriment Finding dan kuota, serta kerangka hukum dan instrumen penegakan sebagai variabel penggerak utama sistem tata kelola. Kesenjangan tertinggi ternyata terkonsentrasi pada variabel penggerak tersebut. Karena kesenjangan dinilai lebih dahulu tanpa mengacu pada posisi struktural variabel, korespondensi itu merupakan temuan diagnostik, bukan pembenaran atas dugaan awal. Kebaruan penelitian ini adalah model evaluasi peningkatan efektivitas pengelolaan hiu Appendiks II CITES di Indonesia yang mengintegrasikan aspek keberlanjutan, legalitas, dan ketertelusuran ke dalam satu rangkaian evaluasi bertahap, mulai dari bukti biologis di titik pendaratan, diagnosis kesenjangan pelaksanaan kewajiban CITES, pemetaan variabel strategis tata kelola, hingga penyusunan prioritas kebijakan. Hasil AHP menunjukkan keberlanjutan sebagai kriteria prioritas tertinggi dengan bobot 0,49, diikuti legalitas dengan bobot 0,30, dan ketertelusuran dengan bobot 0,21. Prioritas alternatif kebijakan tertinggi adalah penyusunan mekanisme monitoring ekspor dan rekomendasi pengelolaan yang transparan di Scientific Authority, peningkatan kapasitas Scientific Authority dan Management Authority dalam penyiapan data dan penyusunan Non-Detriment Finding, serta standardisasi data stok populasi dan biomassa. Temuan ini menunjukkan bahwa efektivitas pengelolaan hiu Appendiks II di Indonesia merupakan hasil interaksi kompleks antara keberlanjutan biologis, legalitas pemanfaatan, dan ketertelusuran perdagangan yang memerlukan penguatan basis ilmiah, kapasitas kelembagaan, dan integrasi sistem data.

Sharks are apex predators that play an important ecological role in maintaining the structure and function of marine ecosystems, but they have high biological vulnerability to exploitation pressure due to characteristics such as slow growth, late sexual maturity, low fecundity, and long reproductive intervals. On a global scale, the abundance of oceanic sharks and rays has declined by 71% since 1970, with more than one-third of Chondrichthyan species threatened with extinction. This condition is closely related to the high economic value of various shark products in the international trade chain, which has formed a complex trade network. The Convention on International Trade in Endangered Species of Wild Fauna and Flora (CITES) plays an important role in ensuring that international trade in wild species does not threaten their survival, particularly through the inclusion of shark species in Appendix II, which requires trade based on the principles of sustainability, legality, and traceability. Indonesia holds a strategic position as the country with the largest shark and ray landings in the world, but faces serious challenges in shark trade governance. Substantial discrepancies between landing data and export data, weak product terminology granularity, and inadequate data collection systems indicate that the problem of shark management in Indonesia lies not only in exploitation pressure, but also in data quality, supply chain structure, and trade monitoring capacity. The Tanjung Luar fish landing centre (PPI Tanjung Luar) in West Nusa Tenggara is one of the important bases of Indonesia’s shark fisheries, dominated by silky shark catches, a species listed in Appendix II of CITES. This study aims to identify the existing condition of the shark fishery at PPI Tanjung Luar together with the composition of landed shark species, their conservation status according to the International Union for Conservation of Nature (IUCN) and their trade status according to CITES, and to evaluate the stock status of silky sharks using the Length-Based Spawning Potential Ratio (LB-SPR); to assess the gap in the implementation of CITES obligations across the dimensions of legal transposition, institutional mandate, and operational instruments; to map the strategic variables that determine governance effectiveness using Cross-Impact Matrix Multiplication Applied to Classification (MICMAC); and to establish policy priorities using the Analytic Hierarchy Process (AHP). The shark fishery at PPI Tanjung Luar is operated by a longline fleet of 9 to 30 GT vessels using tuna longlines, drifting longlines, and bottom longlines. The results showed 52 shark species with a total of 20,809 individuals caught during the study period, dominated by Carcharhinus falciformis, Galeocerdo cuvier, Prionace glauca, Sphyrna lewini, and Carcharhinus brevipinna. These five dominant species are all included in Appendix II of CITES, with most categorized as Vulnerable and Near Threatened according to the IUCN. LB-SPR analysis of 9,598 silky shark individuals indicates a Spawning Potential Ratio of 36% for females and 31% for males, suggesting that stock conditions are still above the biological limit but have not yet reached a precautionary safe target level. Gap analysis shows that Indonesia’s implementation readiness is uneven, with the highest average score in legal transposition, followed by institutional mandates, and the lowest in operational instruments. Six obligations fall into the low-gap category, eight into medium-gap, six into high-gap, and four into very high-gap categories, particularly in handling live specimens after confiscation, public information transparency, trade with non-Party countries, and cross-border verification protocols. MICMAC analysis then identifies the capacity and governance of the Management Authority, data and traceability systems, risk-based Legal Acquisition Finding mechanisms, the role of the Scientific Authority for Non-Detriment Findings and quotas, as well as the legal framework and enforcement instruments as the main driving variables of the governance system. The highest gaps turn out to be concentrated in those driving variables. Because the gaps were assessed first, without reference to the structural position of the variables, this correspondence constitutes a diagnostic finding rather than a confirmation of a prior assumption. The novelty of this study is an evaluation model for improving the effectiveness of CITES Appendix II shark management in Indonesia that integrates sustainability, legality, and traceability into a single staged evaluation, moving from biological evidence at the landing site, through the diagnosis of gaps in the implementation of CITES obligations and the mapping of strategic governance variables, to the formulation of policy priorities. AHP results show sustainability as the highest priority criterion with a weight of 0.49, followed by legality at 0.30, and traceability at 0.21. The top policy priorities include developing transparent export monitoring mechanisms and management recommendations within the Scientific Authority, enhancing the capacity of the Scientific Authority and Management Authority in data preparation and Non-Detriment Finding formulation, and standardizing population stock and biomass data. These findings indicate that the effectiveness of Appendix II shark management in Indonesia is the result of a complex interaction between biological sustainability, legality of utilization, and trade traceability, which requires strengthening the scientific basis, institutional capacity, and integration of data systems.