Vulnerable yet Viable: Stakeholders' Role in Small-Scale Fishermen
Governance towards Viable Life
HAPSARI AYU KUSUMAWARDHANI1, INDAH SUSILOWATI 2, HADIYANTO3
1Economic Development Studies, Faculty of Economics and Business, Diponegoro University,
Semarang, INDONESIA
2Economic Development Studies, Faculty of Economics and Business, Diponegoro University,
INDONESIA
3School of Postgraduate Studies, Diponegoro University, INDONESIA
Abstract: - This research aimed at identifying stakeholders' participation in the appropriate strategy of small-
scale fishermen governance in the waters of Karang Jeruk Conservation Area in facing vulnerability along with
actor typology and analyzing the strategy of how small-scale fishermen survive with their vulnerability based
on stakeholder. This research used a qualitative research paradigm. The data were collected using an in-depth
interview method and were analyzed using stakeholder analysis with MACTOR (Matrix of Alliances and
Conflicts Tactics, Objectives and Recommendations) to identify the stakeholders' power, relationship and actor
alliance pattern and using ATLAS.ti to identify small-scale fisherman governance strategies by stakeholders.
The research results show that most actors were the key players and had low divergence. Small-scale
fishermen's governance strategy requires facilities, infrastructure, institution preparation, and community
empowerment. Such development needs various parties' involvement, including the regulator, executor,
supporting institution, target and community as the main actors
Key-Words: small-scale fisheries, fishermen, vulnerable, viable, actor, MACTOR.
Received: September 9, 2022. Revised: January 15, 2023. Accepted: February 16, 2023. Published: March 10, 2023.
1 Introduction
Power is the central concept in learning about
complex governance systems since it determines
how stakeholders influence each other to achieve
the result they desire, [1]. Stakeholders' increased
involvement and participation have been part of the
sustainable development agenda, [2]. Stakeholders'
participation is one way to end social and
environmental injustice, [3], [4]. Consequently,
stakeholders of different levels and sectors influence
each other and are sometimes involved in conflict or
cooperation to form governance arrangements and
influence good results, [5].
Most fishermen in Tegal Regency, Central Java
Province, are small-scale. Different from fishermen
in Tegal City, fishermen in Tegal Regency are
dominated by small-scale ones. According to Law
No.45/2009, a small fisherman is an individual
whose livelihood is catching fish to fulfil his daily
life needs using a maximum five-gross-ton-sized
fishing boat. Most fishermen in Tegal Regency have
a boat of 3-5 GT, [6]. Meanwhile, only a few of
them have a boat over 5Gross Ton. Their catching
equipment is dominated by purse seine, payang,
badong, and gillnet.
In small-scale fishery, some literature studies
argue that fishermen are not always the poorest of
the poor (in the case of money ownership). Still,
they are the most vulnerable because of high
exposure to natural, health or economic shock, and
disasters, [7]–[9]. Nayak and Berkes, [10] explain
that small-scale fishermen's vulnerability in
material, relational, and subjective aspects, covering
the material level (covering natural, financial, and
physical), relational level, and subjective level
(covering human and social capital); thus it is
divided into human, physical, capital, social, and
financial.
Most of the fishery in the world is small-scale,
[11]. SSF Guidelines offer the opportunity to form
the high commitment needed by states or other
actors to be taken in promoting small-scale fishery
sustainability. SSF Guidelines call for states and
civil community organizations to take actual actions
to bring small-scale fishermen and fishery workers
out of poor and marginalized situations that they
often suffer on a global scale. Achieving small-scale
fishery's sustainability and survival is an ambitious
objective, [11]. This is eventually a matter of
governance with relatively big complexity and
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urgency. As such, supporting small-scale fishers and
enabling them to develop is not only about their
service to the public but also about social and
ethical values. In other words, this is smart politics
from ecological, economic, and social perspectives
and 'the right thing to do', [12].
One of the essential aspects of sustainable
development is the actor's role, [13]–[15]. The
stakeholders can support providing facilities needed
to face the vulnerability of the first level. The actor
is an important component since it not only
determines how a sustainable objective is achieved
but also determines the indicators as the footing of
sustainability, [16]. Governance is closely related to
the actors involved, [17]. Besides, Sururi, [18] states
that collaborative governance can be developed into
an innovation policy model for sustainable
development. According to the research by
Zacharias, [19], in southern Mozambique, coastal
communities are most vulnerable to physical,
financial and social capital. According to the
research conducted by Suharno et al., [20], fishery
resources are exploited excessively. Based on such
conditions, appropriate rules and policies are needed
in the institutional management of fishery resources
for their preservation. The research results show that
stakeholders involved in fishery management are the
subject, audience, actor, and player. Lina M.
Saavedra-Díaz et al., [21] in their research state that
Colombian small-scale fishermen face various
problems and conflicts. While many issues are
shared between individuals on the two coasts of the
Atlantic and Pacific (bi-coastal), other problems
unique to a subset of the community only occur in
one of the coasts (uni-coastal) or individual
locations. Comparison from previous studies that
discussed Coastal communities are vulnerable to
physical, financial and social capital and appropriate
rules and policies are needed in fisheries resource
management institutions. Stakeholders have a role
in dealing with these institutions. Stakeholders have
a role in dealing with the situation.
Solving these main fishery problems requires
establishing a fishery strategy that may prioritize
solutions at various levels: national, coastal, and
local. This study explains the solutions identified by
the three groups of stakeholders: fishermen, local
leaders, and fishery experts, to improve small-scale
fishery management in Colombia. The specific
recommendation here is presented to reform and
reconstruct the governance through joint
management and to develop consensus among the
stakeholders-government and users. The same also
occurs with the fishermen in Munjung Agung
village who catch fish around the waters of the
Karang Jeruk conservation area. The small-scale
fishermen face various problems and conflicts and
need support from actors who play a role in their
lives.
This research aimed to identify the stakeholders'
participation in the appropriate governance strategy
for small-scale fishermen to face vulnerability along
with actor typology based on power and the
relationship between actors and actors' attitudes
towards the objective. The second aim of this
research is to analyze the strategy of how small-
scale fishermen survive with their vulnerability
based on Stakeholder
2 Materials and Methods
This research used qualitative methods in all stages
of the research process. The key stakeholders were
taken from Munjung Agung Village or Kampung
Nelayan Larangan, Karang Jeruk Conservation
Area, Kramat District, Tegal Regency. This research
used primary data from 15 stakeholders consisting
of academics (Academics), the business player
(Business), the government (Government) and
community figures (Community). The research's
analysis instrument used in the stakeholder analysis
was MACTOR (Matrix of Alliances and Conflicts:
Tactics, Objectives and Recommendations), [22]–
[25] to observe the characteristics, describe the
power and attitude of the actors towards the
objective of small-scale fishermen development, and
the relationship of interest between the actors. The
second analysis instrument was ATLAS.ti which
was used to answer stakeholder-based adaptation
strategies for small-scale fishermen. The in-depth
interview results were transcribed and processed
using the qualitative analysis software ATLAS.ti
7.0. After the interview, the next step was making
codes associated with the transcript; thus, qualitative
results would be obtained from the qualitative data.
3 Results and Discussion
The rapid expansion of the human population,
depletion, and degradation of surface and ground
water resource, frequent drought and climate change
are expected to add some pressure to the community
that depends on fishery for a living, [26]. However,
the survival and sustainability of small-scale fishery
and community that relies on it in the suburbs are
threatened by a number of factors such as
overexploitation of fish resources, water pollution,
decreasing quantity of water and climate change.
[27]. However, it is not impossible that they cannot
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have a viable life. An adaptive strategy is needed to
reduce fishermen's current and future vulnerability,
[28]. Defining a traceable governance strategy for
small-scale fishermen requires stakeholders' role,
who are those directly involved in fishermen's daily
life. From this approach, actor is defined as an entity
with a position in the system learned and serving to
mobilize their resources to influence the outcome
directly or indirectly through their influence on
other actors, [16].
3.1 Evaluating the Actors' Balance of Power,
Convergence, and Divergence
In the last few decades, researchers have developed
various methods to analyze stakeholders’
involvement in the governance system, [29]–[31].
The stakeholder analysis (SA) has been a standard
instrument for identifying and characterizing
stakeholders, [32]. Before entering into governance
strategy, we have first identified the stakeholders.
This research involved 15 stakeholders involved in
small-scale fishermen's daily life around the Karang
Jeruk Conservation Area, Tegal Regency. The
stakeholders involved some actors from Academics,
Business, Government and Community (A-B-G-C).
Table 1. Stakeholder Identification
No
Actor
Role
1
Lecturer of
the Faculty
of Fishery
and Marine
Affairs of
Diponegoro
University,
Brackish
Expert
(AcFPIK1)
Contributing
notions and
ideas for
objective
planning of
small-scale
fishermen's
vulnerability,
playing more
role in
catching gear,
coral reef, and
MPA
2
Lecturer of
the Faculty
of Fishery
and Marine
Affairs of
Diponegoro
University,
Coral Reef
Expert
(AcFPIK2)
Contributing
notions and
ideas for
objective
planning of
small-scale
fishermen's
vulnerability,
playing more
role in waste
management
and forest
cover
3
Owner of
LKP
Pasopati
(LKP)
Contributing
the view of
employment
expansion and
skill
improvement
for small-scale
fishermen
Education,
employment
expansion
4
Stall owner
(stall)
As common
people, owner
of stalls
around the
coast, and as
wife of a
small-scale
fisherman,
contributed
views, ideas,
and power in
village
development.
Community
economy
5
Head of
Coastal
Fishery
Port Office
of
Larangan
(PPP)
Contributing
place for
governmental
activities and
fishery
business
system
activities
providing a
point where
boats is
moored to, tied
to, and/or for
fish offload
equipped with
sailing safety
facilities and
fishery
supporting
activities
Port and
small-scale
fishermen
control
6
Head of
Wild
Fisheries
and Coastal
Resources
Section of
the
Department
of Animal
Husbandry,
Fishery,
Planning and
implementing
local
development
program in the
field of wild
fishery and
coastal
resources
management
MPA,
catching
gear,
environment
al awareness
control
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and Marine
Affairs of
Tegal
Regency
(DKKP1)
7
Staff of
Fishermen
Empowerm
ent of the
Department
of Animal
Husbandry,
Fishery,
and Marine
Affairs of
Tegal
Regency
(DKKP2)
Planning and
implementing
local
development
program in the
field of
fishermen
empowerment
8
Head of
TPI
Larangan
(TPI)
Contributing
place for fish
auction, price
stabilizing
function, and
fishermen's
welfare
function.
9
Secretary
of KUB
Teri Nasi
Fishermen
(KUB)
Creating and
giving inputs
of creative
ideas and
management
of tourist
destination.
10
Village-
Owned
Enterprise
Worker
(BumDes)
Giving inputs
and ideas on
development
11
Fish seller
(Fish-
seller)
Fish seller that
buys
fishermen's
catches in TPI
contributes to
give inputs
and ideas on
development
12
Fisherman
1
(fisher1)
Representative
of fishermen
with gillnet
13
Fisherman
2
Representative
of fishermen
with catching
gear purse
(fisher2)
seine
conservation
14
Fisherman
3
(fisher3)
Representative
of fishermen
with catching
gear payang
Eradication
of poverty,
local wisdom
conservation
15
Fisherman
4
(fisher4)
Representative
of fishermen
with catching
gear badong
Eradication
of poverty,
local wisdom
conservation
The stakeholders were then classified into different
categories based on their dependence and influence.
The stakeholders' dependence and influence were
processed using the MACTOR analysis instrument.
The analysis mapping matrix was divided into 4
quadrants, namely: a). context setter, b). key
players, c). Subject, and d). Crowd.
Fig. 1: Stakeholder Mapping Based on Level of
Dependence on Influence
Key player is a party with high dependence and
influence in governance attempts in the face of
small-scale fishermen's vulnerability. Relay actor
are actors expected to play a role in field execution
of various decisions. Actors of this type will be the
spearhead and determinant of the success of
development operation pursuant to their respective
capacity and role. This position is taken by the
Department of Marine Affairs, Fishery, and Animal
Husbandry of Tegal Regency of the Wild Fishery
and Coastal Resources Management office, the
Department of Marine Affairs, Fishery, and Animal
Husbandry of Tegal Regency of Fishermen
Empowerment and Coastal Fishery Port Section
(PPP), Fish Auction House of Larangan (TPI), KUB
Fishermen (Joint Venture Group), and fishermen
with gillnet, purse seine, payang, bubu/badong.
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The subject was the party with high dependency
but low influence. In this research, the subject
quadrant was vacant. The context setter category,
meanwhile, was the party with high influence but a
little dependence and could be a significant risk,
thus it needs to be managed. The parties of this
group include academics (acFPIK1 and acFPIK2),
fish seller, and owner of Course and Training
Agency. This party can be classified as a policy
user; thus, it needs to be empowered. The crowd
category is the party with low influence, such as the
administrator of Village-Owned Enterprise and
small stall around the coast.
The next measure was measuring the
convergence between actors with the objective
(using order 2) as presented in figure 2. The graphic
of convergence between actors maps the actors
related to their convergence, where the closer an
actor is to the other, the more intense their
convergence is.
Fig. 2: Graphic of Convergence between Actors
Red line shows in figure 2 the level of convergence
between actors. Lines of different colours and
thickness show differences in the level of
convergence between actors. Red convergence
between the Department of Fishery, Animal
Husbandry, and Marine Affairs (Diponegoro
University Academician), KUB, PPP and BumDes
shows the closeness/strength of convergence level
between the actors.
Fig. 3: Graphic of Divergence between Actors
In regard to divergence, however, actor with
relatively high divergence level is fishermen that
represent fishermen with catching gear badong with
stakeholder PPP (coastal fishing port) since
fishermen with fishing gear Badong and stakeholder
PPP (coastal fishing port) tend to be in a passive
relationship. This is due to the lack of government
programs for fishermen with badong fishing gear
compared to fishermen with other fishing gear.
Badong is a minority fishing gear used by fishermen
who catch fish around Karang Jeruk conservation
3.2 Adaptive Capacity and Potential Source
of Resilience/Transformation based on
stakeholder
Besides examining stakeholders' characteristics by
observing the level of influence and dependence and
the actors' divergence and convergence patterns, this
research analyzed the strategy of how small-scale
fishermen survive with their vulnerability based on
stakeholder using a qualitative approach with in-
depth interview with the stakeholders, of which
results were transcribed and processed using
qualitative analysis software ATLAS.ti 7.0. After
the interview, the next step was creating codes with
the interview transcript associated, thus quantitative
results would be produced from the qualitative data.
The quantitative results were used as the measure of
emphasis or the extent of informants' perception of
the predetermined criteria. The results of code and
criteria processing with ATLAS.ti show that there
are five indicators prioritized by the stakeholders,
thus the results below have been found.
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Fig. 4: Network of Relationship between Factors of
Criteria (In-depth Interview with Stakeholders)
Based on the results of ATLAS.ti analysis above,
there are 6 main variables found from the in-depth
interview with the stakeholders. The six variables
emphasized by the stakeholders are social-
economic, institution, Environmental Awareness,
Institutional, accessibility, and technology. Table 2
explains the network of relationship between the
factors of small-scale fishermen's vulnerability
strategy criteria in more detail
4 Discussion
Understanding the roles and coordination between
the stakeholders involved is greatly needed in in-
depth study on small-scale fishermen's vulnerability
governance. With stakeholders' participation,
minapolitan development will be realised as desired.
This is related to the process where the stakeholders
influence and share supervision over development
initiative and decision as well as resources that may
affect them, [33]. Actor convergence illustrates
similarity in actors' attitude towards the objective.
Actors with similar attitudes will be convergent,
while those with different attitudes will be
divergent, [25]. The convergence analysis is
intended to find out possible points of actors'
potential alliance. Convergence maps can be used to
determine which actors can cooperate in avoidance
of possible conflict.
Table 2 shows the recapitulation results based on
the results of in-depth interviews with the
stakeholders in the research, which are the
explanation of relationship networks arising from
the processing by atlas.ti. The indicators used to
facilitate analysis on adaptation of Vulnerability and
Adaptive Response where the aspects that need to
be noted regarding the strategy are explained with 5
important points, namely social-economic,
institution, institutional, environmental awareness,
and technology.
For the social-economic indicator, the first
adaptation is to change the way of life through self-
resilience. Stakeholders recommend fishermen to
have insurance, both health and labor insurance.
This is very important to consider that most of them
do not have any health or labor insurance. In case of
accident or sickness, they would be eligible to claim
the insurance as stated in the research conducted by,
[34].
The other issue related to insurance is that they
have such insurance, but do not pay the premium,
thus it cannot be used when needed. These are the
existing important problems in the coastal
community of Munjung Agung. According to the
stakeholders, an extension is needed around the
fishermen, such as opening a branch office near
fishermen settlement.
Third, it is to emphasize awareness of the
importance of human resources quality through
education, both formal and informal. Formal
education as per the government's 12-year
mandatory education program and informal
education to improve skills in other fields. Informal
education such as course and training can improve
employment opportunity, [35].
Further, with regard to social-economy,
facilitation of access to boat fuel is needed. It has
been a while that the gas station (SPBU) is inactive.
It is expected that the SPBU can be reused,
especially with the oil fuel subsidy currently given
to small-scale fishermen. The stakeholders also
talked about possible tourism around fishermen
settlement Munjung Agung. Larangan Coast is a
relatively good potential tourism, that the coastal
tourism area has even started. The potential tourism
should certainly be supported with good
accessibility. Good accessibility is quite useful for
improvement of local sustainable economy and
development, [36]–[38]. In the institutional aspect,
the stakeholders create a connection for smooth and
ease of connectivity, boat permit control and
adaptation to a more modern system. Connectivity is
an attribute of adaptive capacity. Adaptive capacity
often depends on the following factors: response
diversity, collaborative capacity, connectivity,
reserves, and learning capacity, [39].
Environmental awareness is also one aspect
emphasized by the respondents. The more aware a
community of their environment and environmental
preservation, environmental awareness will have a
positive impact on environmental sustainability and
preservation amidst the globalization threat [40].
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Table 2. Indicator of Adaptive Capacity and Potential Source of Resilience/Transformation based on stakeholder
Source: primary processed data, 2021
Identification
Indicator of Adaptive Capacity
Potential source of resilience/transformation
Social-
Economy
Changing way of life through self-resilience
Having insurance, both for health and labor insurances
Insurance office branch near fishermen settlement
Emphasizing awareness of the importance of Human Resources quality through
formal or informal education and good health`
Facilitation in accessing fuel for boat
Re-functioning of SPBN (Gas Station for Fishermen)
Existence of tourism to provide more employment
to surrounding people
Creating the existing tourism diversity
Good tourism accessibility
Creating branding to attract tourists
Institution
Creating connectivity for smooth and convenient
relationship
Increasing function and awareness in fishermen organization
Creating good relationship between the government, community organization
and the society
Improving irregular institution
Adaptation to more modern system
Coaching for institutional modernization
Boat Permit Control
Controlling and coaching for boat licensing
Environmental
Awareness
Waste management
Good waste management around tourism area and the environment, by procuring
trash bins
Forest cover
Improving socialization and awareness related to the importance of natural
ecosystem
Planting mangrove
Environmentally friendly catching gear
Preventing use of non-environmentally-friendly catching gear
Prohibition from using non-environmentally-friendly catching gear
Maintaining Coral Reef Ecosystem
Restoring coral reef as fish habitat
Adding artificial coral reef for new fish habitat
Strict regulation related to destruction of coral reef ecosystem
Training for surrounding community to maintain and plant coral reef
Marine Protected Area
Restrict fishermen to enter conservation area
Improving fishermen's awareness related to conservation area
Institutional
Government's Regulation
Supporting regulation
Sustainable regulation
Accessibility
Improving Accessibility
Repairing damaged roads
River dredging
Increasing tourism accessibility
Technology
Understanding of the importance of technology
Regular socialization with fishermen
Use of technology
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Environmental maintenance and preservation
in the coastal development process have the
potential for adaptive capability and for the
community to adapt to the region's new
condition. Considering the importance of
environmental preservation, the coastal, and
surrounding community can prevent and not
cause damage, [41]. A resilient environment
and a coastal community's flexibility are the
power to protect not only small-scale
fishermen, but also the people of coastal
communities and avoid conflict. The
awareness of environmental preservation will
eventually support fishermen settlement
development in the Karang Jeruk conservation
area.
In regard to the understanding of the
importance of technology, the stakeholders
recommended the importance of technology
for the existence of small-scale fishermen. The
research conducted by Benard & Dulle, [42].
The implementation of information and
communication technology (TIK) in the
traditional fishermen community in Zanzibar,
Tanzania states that traditional fishermen's
knowledge of weather conditions, fish
catching method, market and marketing, and
fish conservation and processing is still
lacking. The traditional fishermen also still
face many constraints in using TIK devices as
the means to obtain the information used to
catch fish such as lack of fund, bad network
connectivity, and lack of training and seminar
on the use of TIK, while TIK contributes to
improving fishermen's life significantly, [43].
The latest information on weather and market
access provided through TIK helps fishermen
feel at ease and comfortable at the sea and
broaden their market. Another research
conducted by Sabu et al,. [44] finds that
Global Positioning System (GPS) devices and
cellular phones are useful to improve
fishermen's productivity. In addition, the use
of technology is also the effort to realize one
of the programs Quick Wins out of the nine
agenda of the work cabinet's national
development priority 2014-2019 (Nawacita).
5 Conclusions
This research concludes that there are some
actors involved in the governance for
'vulnerable yet viable' different rooms of
power, among the government, private sector,
and the society. The results of analysis on the
influence and dependence between
actors placed the actors in a strategic context
where the actors are expected to appreciate
each other's competitive advantages.
The other result is that most of the actors
are convergent. Thus, it is necessary to
improve collaboration and form a very strong
alliance between the convergent actors in order
to achieve their objectives. Meanwhile, for
divergent actors where there may be potential
future conflict, good communication is needed
between them. Besides, the results of
ATLAS.ti processing identified with the
governance strategy recommended by the
stakeholders is divided into some main
aspects. This includes social-economy, related
to life changes for self-resilience; institution,
related to strengthening connectivity,
transformation of modern system and control;
environmental awareness, related to perceived
environment as one of the centers of activities
for people living in coastal area, with the
benefit of maintaining sustainable sea
ecosystem being for the fishermen to be able
to benefit from them in the future; institution,
related to government regulation; accessibility,
related to infrastructure improvement; and
understanding of the importance of modern
technology. This research can be the
development of research related to the life of
small-scale fishermen based on stakeholders
and how the convergence and divergence
between stakeholders. This research can also
help determine which stakeholders should be
involved in consult and the appropriate
policies to implement.
Further research can explore the
vulnerability of small-scale fishermen from
stakeholders' perspective more thoroughly, and
also gather information through the FGD
method that was presented in this research
because of social distancing for the covid-19
pandemic. Lastly, a comparative analysis of
various case studies at different, more
advanced levels and contexts can improve our
findings
Acknowledgements:
This research is part of the PMDSU
scholarship research scheme. For this reason,
the author would like to express her gratitude
and appreciation to the Directorate of Higher
Education Degree, Ministry of Research and
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Technology/National Research and Innovation
Agency (Kemenristek/brin) the Government of
Indonesia for supporting funding for this
research and the publication of this article. The
author also thanks all members of V2V Global
Partnership for the valuable support.
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Contribution of Individual Authors to the
Creation of a Scientific Article
(Ghostwriting Policy)
Hapsari Ayu Kusumawardhani carried out the
field data, performed the data analysis and
wrote an article.
Indah Susilowati as a reviewer and supervisor.
criti cally reviewed, updated, expanded and
improved the original draft of the manuscript.
Hadiyanto as a reviewer and supervisor.
critically reviewed, updated, expanded and
improved the original draft of the manuscript.
WSEAS TRANSACTIONS on ENVIRONMENT and DEVELOPMENT
DOI: 10.37394/232015.2023.19.18
Hapsari Ayu Kusumawardhani,
Indah Susilowati, Hadiyanto
E-ISSN: 2224-3496
217
Volume 19, 2023
Sources of Funding for Research Presented in a
Scientific Article or Scientific Article Itself
Conflict of Interest
The authors have no conflicts of interest to declare
that are relevant to the content of this article.
Creative Commons Attribution License 4.0
(Attribution 4.0 International, CC BY 4.0)
This article is published under the terms of the
Creative Commons Attribution License 4.0
https://creativecommons.org/licenses/by/4.0/deed.en
_US
This research is part of the PMDSU
scholarship research scheme. For this reason,
the author would like to express her gratitude
and appreciation to the Directorate of Higher
Education Degree, Ministry of Research and
Technology/National Research and Innovation
Agency (Kemenristek/brin) the Government of
Indonesia for supporting funding for this
research and the publication of this article. The
author also thanks all members of V2V Global
Partnership for the valuable support.