“SALT SITUATION IN BALI”

Report of a Rapid Survey in October 2006

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By

Sunawang, MSc, DR.PH*

Ir. Bambang Hernanto, SE, M.M. Tech**

*) Program Officer of The Micronutrient Initiative, Jakarta and Consultant for UNICEF

**) Directorate for the Down-stream Chemical Industry, Ministry of Industry.

Jakarta, 2006

“SALT SITUATION IN BALI”

Report of a Rapid Survey in October 2006

I. Background

The current stagnant level of iodized salt consumption in Bali at around 45% since 5 years back has raised deep concern on the future burden of having inferior generation in term of mental capacity. Hence, there is an urgent need to understand what have been the causal factors and find out the potential break-through for solving the Bali problem.

The Micronutrient Initiative, a non-profit organization from Canada shares the concern of such unacceptably high proportion of population unprotected from iodine deficiency in many provinces in Indonesia including Bali. The Micronutrient Initiative has recently opened its operation in Indonesia and agreed to support Bali to reach USI (Universal Salt Iodations). UNICEF, which has been supporting Indonesia in this salt fortification since 30 years ago, expressed concern on Bali problem and will collaborate with other agencies in pursuing USI together. The Ministry of Industry, being the main agency in salt fortification, will be the pivot point for coordinating the various efforts to accelerate the Indonesian USI by the year 2010.

The objective of this rapid survey was to up-date the information on salt situation and find out the potential break-through for reaching USI in Bali. Being a rapid survey this data collection was basically a semi-quantitative effort in order to describe the situation of local salt production, importation, processing, distribution and consumption. The survey has covered all important local salt production and different characteristic of the salt importation and local salt processing in Bali.

II. Method

This rapid survey was conducted by Sunawang from The Micronutrient Initiative cum UNICEF consultant and Bambang Hernanto from the Directorate Downstream Chemical Industry. The survey was undertaken from 17th up to 20th October 2006 accompanied by Mr. I Dewa Ketut Kariadha, SH from the Provincial Industry and Trade Office in Denpasar. The survey covered 6 out of 8 districts: Denpasar, Badung, Klungkung, Jembrana and Buleleng. The detailed places and institutions visited during this survey are listed in APPENDIX 1.

The method of the survey was a direct interview to formal and informal resource persons at different institutions including provincial governmental officers, port authority, salt retailers at wet markets and kiosks, salt traders, salt importers, salt farmers, salt boilers. These informants and type of information are listed in the APPENDIX 2

The survey was concentrated on collecting the following information:

1)        The current local government policy on USI and effort being undertaken on salt and iodized salt.

2)        General distribution pattern and the level of consumption of  salt and iodized salt

3)        Local salt production, the location, method of production, and estimated yield.

4)        Distribution pattern of locally produced salt in reaching the market places and household kitchens.

5)        Salt importation including the main actors, from where salt is imported, what are the distribution pattern and the estimated amount salt imported annually.

Figure 1 Map of Bali Island with 7 districts and one municipality of Denpasar

III. Findings

1. Basic Indicators of Bali

Bali Island is a province with 7 districts and one municipality. The total population is 3,315,700. The population under the poverty line is 6.85% and the unemployment figure is 4.6% much better than national figures of 17% and 10% respectively. The under-weight among under five children is only 16.4% (national figure is 28%). The per capita GRDP is Rp. 7,3478,000- (the national figure is Rp. 8,304,000 and the neighboring provinces: East Java is Rp.7,175,000; NTB is Rp. 3,939,000 and NTT is Rp.2,403,000- )[1]

2. The IDD problem in Bali

The survey on prevalence and mapping for goiter in 1998 showed 70% sub-districts in Bali were classified of having either mild, moderate of severe endemic goiter[2]. A later study by University of Udayana using Thyromobile (2000) indicated that in average population in Bali has urinary iodine below the adequate level (100 ug/L). The newest study[3] showed improvement in urine iodine and has reached the adequate level except Klungkung district.

However the nation wide survey on iodized salt consumption by households showed a stagnant level at below 45% since last 5 years[4]. The coverage by districts is shown in Figure 2.

Figure 2 Coverage of households consuming iodized salt, 2003

4. The Local Government Policy On Usi And The Current Effort

The concern on the implication of iodine deficiency was strongly raised by the local health sector and has been advocating for an inter-sector coordination to address the low coverage of iodized consumption in Bali. The Provincial Health Office (PHO) has taken initiative to launch a concerted effort to deal with IDD particularly pushing the active role of Provincial Office of Industry and Trade in the production of iodized salt. The coordinating team for IDDC in Bali has been established under the umbrella of Provincial Foods Resilience Council (Dewan Ketahanan Pangan) since early 2000s.

Still under the initiative of PHO, being the Chairman for the Consumption Working Group under the Council of Foods Resilience, it proposed provincial strategy for IDDC in 2003 summarized as follows:

Short term strategy:

1.    To strengthen the inter-sector coordination at provincial level on the on-going Salt Iodations

2.    In pursuance of Universal Salt Iodations, it is required to establish Provincial Team for controlling the quality of iodized salt under the Governor Decree in order to improve a stronger control on the quality and distribution of iodized salt.

Medium - Longer term strategy:

1.      To issue local law on Iodized Salt in the province of Bali.

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Current activities

The current activities on USI in Bali are still dominated by the initiative of the health sector including iodized oil distribution in high endemic areas and promotion of iodized oil in coordination with PKK (women organization for welfare). The latest report indicated that the idea of having provincial law to control iodized salt has been shifted to District Law (2003). In this effort we saw a strong law has been issued by the Mayor of Denpasar to control not only the distribution of iodized salt but also a more aggressive control on non-iodized salt distribution.

However, we did not see any action on the enforcement of this local law as shown by still free and abundant raw and non-iodized salt sold in the market places. The indication of follow up action in the city of Denpasar was shown by the approach to Ms. Tike, an old timer in iodized salt manufacturing in Benoa, Denpasar. She was encouraged to re-open her iodized salt factory and supported with 3 mixing machines for iodating salt. She planned to iodize the salt that produced by salt boilers (see the report on local salt processing plants in Benoa). She urged the control of raw salt should be strictly implemented as the prerequisite for her to producing the iodized salt. Otherwise there will be no demand from the salt boilers to cooperate with her and will continue selling directly to markets.

5. Salt Situation In Bali

b.     Local salt production

1)      Solar salt farm in Guris, Buleleng:

A major salt production area is growing in a coastal village of Guris, Pejarakan, Sub-district Gerogak, district Buleleng in northern coast of Bali. There is about 100 salt farmers mostly originated from Madura with total about 100 HA salt farms. According 2 farmers interviewed in the field (Makmun and Syukron) the production capacity is about 100-150 MT per HA per harvest, but under further scrutiny the most reasonable figure is 60-80 MT productivity per HA per harvest time. Hence the total estimated salt production here in Guris is about 6000 up to 8000 MT annually during normal dry seasons.

About 40-50% of the produce is sold to the near-by 3 salt washing plants (Sulaeman, Rengeh and Rawi). Further information indicated that the quality of the salt produced in Guris is not hard enough (as compared to salt from Madura). Hence the lost is about 30% after thoroughly washed in the salt washing plants. The salt boilers in Benoa do not use local raw salt from Guris due to high lost when washed.

Quite interesting that salt farmers in Guris, either land owners or share-cropper has already established embryonic association with the guidance of Mr. Soegiarto[5], an officer from the Ministry of Maritime and Fisheries. He was closely working with these salt farmers due to his effort to introduce brackish water fisheries. His role could be an asset for future organization of salt farmers here to accept the mandatory of salt iodations.  

Illustration 1 Growing Salt Farms in Guris, Pejarakan, Buleleng

Illustration 2 Temporary Warehouse at salt farms ready to market

2)      Sand Salt Harvesting in Kusamba, Klungkung  

The traditional salt making by drying up brine under the sun in a “small-boat” made of coconut stem is reviving at this moment. This is due to, among other things the appreciation given by tourists who considered as “natural salt”. Also some fanatic local customers of this “natural salt” to some extent have preserved this inefficient traditional method. The brine is derived from pouring sea water on the bed of sand and let it dried under the sun. In the afternoon the dried salt in the sand is collected and dissolved in sea water and filtered down with strainer made of coconut fibers, pebbles and sands to get clear brine. After letting the dirt precipitated, the next morning the clear brine is sun dried by putting it in a “small boat” made of coconut stem. After it dried, the upper layer salt become the best quality of salt as it is white and clean without dirt. This best quality part is sold to salt collector for export to Japan as exotic salt for consumption and for spa. The rest is sold in the near by markets

There are about 35 farmers in this area with daily production between 10-15 kg per day per farmer and his family. The total production is estimated about 126 MT annually (35 farmers x 15 kg x 240 working days = 126 MT). Through traders this traditional salt is marketed in the near-by sub-districts and some for export to Japan ((8 months x 6 MT = 48 MT).

Illustration 3 Evaporating thick brine in “a small boat”

                                                made of coconut-tree stem

c.      Importation of Salt

We found only two major entries for salt importation to Bali: Gilimanuk, Jembrana in the West Bali and traditional unloading Guris, Buleleng in the North Bali. Other two major sea ports in Padang Bai and Benoa in the Eastern Cost of Bali do not record any salt imported through these two ports.

1)      Gilimanuk, West Port of Bali.

Import of Raw Salt:

Both iodized and raw salt are imported from East Java through Gilimanuk port. A huge amount of raw salt is imported from Probolinggo by Mr. Sobari who is living in Negara, about 60 Km from Gilimanuk. It was estimated about 3000 MT annually is imported by Mr. Sobari (one truck of 16 MT every two days: 16 MT x 180days= 2880 MT). He has no warehouse so all imported salt is delivered directly to his major customers, either to traders in major market or salt boilers in Benoa, Denpasar.

Import of Iodized Salt:

All iodized salt in Bali is imported from East Java. It is difficult to estimate the amount of this importation. From the CBS data we could figure out about 3.375 MT annually (45%x 7.500 MT= 3,375 MT). That is the best estimate according to the consumption iodized salt coverage. From the wet markets in 6 out of 8 districts in Bali we found 6 brands of fine iodized salt:

a) Jago produced by Jaya Agung Abadi ( Surabaya? No production site on the label). This brand seems to dominate the market.

b) Kerapan Sapi, produced by PD Sumatraco, Surabaya.

c) Kemilau Losarang, produced by PD Sumatraco, Surabaya.

d)Apel, produced by UD NH Abadi Industry ( No production site on the label)

e) Daun produced by UNICHEM, Sidoarjo and Madura

f)  Daun produced in Banyuwangi.

Notes: With exception of “Cap Daun” from Banyuwangi, all iodized salt brands indicate adequate iodine content (dark purple with the rapid test kit)

2)      Guris, Buleleng.

Import of Raw Salt

Guris is not a legal sea port. It is just a simple coast for unloading the raw salt shipped from Madura Island. Guris is in fact a newly constructed costal salt farm dominated by community coming from Madura focusing on salt business. The salt that imported through Guris seems to be monopolized by Mr. Sakirin, a Madurese who is also living in Negara. We did not hear any other names mentioned as salt importers through Guris. It is estimated about 3000 MT raw salt imported by Mr. Sakirin annually. He has small warehouse in Negara but mostly he delivers directly to his distributors in major markets through out districts/city in Bali and/or salt boilers in Benoa, Denpasar. Guris becomes the most economic place for importing salt directly from Madura Island as compared to go through Western Port of Entry in Gilimanuk.

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Import of Iodized Salt

There is no iodized salt imported through Guris. This illegal port is only for harboring traditional wooden ship from Madura and unloading the raw salt.

Table 1 Summary of Local Salt Production and Importation to Bali

d.    Salt Processing in Bali

We did not find any iodized salt manufacturer in Bali. We met with the old iodized salt manufacturer, Mrs. Tike used to have iodized salt brand Putri Bali. She stopped producing iodized salt since more than 6 years ago when she could not get the permit to market her iodized salt in 200 g pack. The law that issued by the Ministry Industry (No. 77/M/SK/5/1995 then revised by 42/M-IND/PER/11/2005) specified that retail iodized salt packaging is 100g. 250g, 500g, 1 kg, 5 kg, 25 kg and 50 kg.

1)  Salt Washing Plants in Guris, Pejarakan, Buleleng

On the other hand we saw a rapid development of raw salt processing without putting iodine. This processing is only refining the dirty raw salt to be fine and clean. There are two kind of salt refineries in Bali. The first is by washing the raw salt. The big crystal of raw salt is first broken into smaller crystal and then washed and drained. There are 3 pretty big salt washing plants in Guris where the supply of raw salt coming from the nearby solar salt farms. Out of the total estimated raw salt production in Guris salt farms (7500 MT) about 5000 MT is purchased and washed by these 3 washing plants in Guris. There is a big lost about 30% during washing, hence the production of these 3 Washing Plants is about 3000 MT annually.

Illustration 4 A Salt Washing Plant: white and fine but not iodized

2) Salt Boilers in Benoa, Denpasar.

The second salt processing is boiling the raw salt after dissolving it into sea water to make thick and clear brine. Different with the boilers in NTB, Bali boilers apply total crystallization of the brine, meaning to evaporate all the water by wood fire until dried salt obtained. All boilers here receive the raw salt supply either from Mr. Sobari or Mr. Sakirin , two raw salt importers staying in Negara, Jembrana. Further information from the boilers in Benoa and Suwung Kangin showed that they use only raw salt from Madura or East Java because of lower lost during washing compared to local raw salt produced in Guris.

There are estimated 25 salt boilers working in the coastal areas in Benoa and Suwung Kangin (Denpasar), Jimbaran  and Uluwatu (District of Badung). The lowest estimate for the total production of these salt boilers is about 1750- 2000 MT annually.

Figure 4 shows the information on the local salt production, importation and salt processing for Bali in 2006.

d. Over-all supply and demand of salt in Bali

Based on the estimated figures for the local production, importation, local processing and data on potential demand for salt, we could draw the supply and demand for salt in Bali as described in the following Table 2.

A substantial demand of salt by incoming international and domestic tourist which according to 2005 data is about 1,500,000 international tourists landed annually in Ngurah Rai Airport. Their duration of stay is average 9-10 days. It means the demand for salt during staying in Bali is about 1,500,000 X 10 days X 10 g =150,000,000 g = 100,000 kg = 150 MT. The domestic tourists are estimated double the international but with only 5 day average duration of stay in Bali. Then the estimated salt demand during staying in Bali is the same: 150 MT annually.

The industries in Bali that demanding substantial salt include animal feeds, cold storage, ice making and fish curing. The best estimate is about 2000 MT annually.

Hence the total supply of available salt in Bali both locally produced and importation is 17000 MT. Due to lost in washing process in 3 major washing plants with 30% lost, the total available salt become 15000 MT annually. The total demand for domestic salt need and industries including tourists is about 12300 MT.

e. Salt prices at markets

In such a short survey it was rather difficult to obtain a real price of salt. At Kusamba, the traditional salty-sand harvest we were treated as curious tourist and difficult to get the real price. Deducting from different sources of information we got pretty accurate prices. In general consumers get retail price of iodized salt at Rp. 500 for 200 g or Rp. 1000 for three packs (It costs Rp 1700 – 2500 per kg). For unprocessed raw salt the retail prices is Rp. 1000 per kg and the fine and washed but non-iodized the retail price is Rp. 1500- Rp.2000 per kg

Table 2. Over-all supply and demand for raw salt and iodized salt in Bali, 2006

The distributors sold the unprocessed raw salt at Rp. 700 and the washed and fine raw salt at Rp. 800. The selling price at farms in Guris is Rp. 250/kg, it is more expensive than salt imported from Madura. The raw salt importers, Mr. Sobari and Mr. Sakirin sell un-processed raw salt to distributors at Rp. 400-Rp 500 per kg. Mr. Sobari is specialized in importing salt from East Java (Probolinggo and its surroundings) and imported through Gilimanuk Port. On the other hand, Mr. Sakirin is specialized in importing salt from Madura and has to go through Guris as the shortest distance from Madura Island

IV. Discussion

This semi-quantitative survey has succeeded to give rough quantitative and qualitative description of the recent salt situation in Bali. The previous assumption that Bali has no more substantial local production was wrong. Also the assumption that a great deal of boiled salt imported from Lombok could not be substantiated by this survey.

There is growing local salt production in Guris, Pejarakan Village in the Kecamatan of Gerogak, District Buleleng (producing minimum 7000 MT annually). It seems the development of this salt farm is still continuing by mostly immigrant from Madura, East Java. The absence of control for raw salt distribution has minimized the development of  iodized  salt manufacturing in this salt production area. Guris salt farms have grown to be the number one problem for Bali to reach USI looking at the fact the produce has made minimum 5500000 kg/3 =1,83 million Balinese ( 50% of total Bali population) unprotected to get lower IQ and facing risk of less developed mentally.

The uncontrolled condition also has been pushing the growth of salt processing without putting iodine. There are two types of salt processing rapidly growing in Bali. First are the 3 washing plants in Guris with production capacity of 3000 MT and second is the 25 salt boilers in Benoa, Jimbaran and Ulu Watu with production capacity of 1750 MT. Those processing plants have supplied Bali market with 5000 MT non-iodized salt without any control from the government!!!

In the same manner, the salt importers are enjoying freedom for distributing  raw salt to the markets. A total of 6000 MT freely enters the households and industries in Bali with consequences of about 6,000,000 kg/3 = 2 million people in Bali do not get the protection from the risk of inferior mental and intelligence development.

In the absence of local iodized salt manufacturing in Bali, all iodized salt is imported from East Java. It is estimated that Bali imports about 3375 MT iodized salt annually to cater 45% population demanding for iodized salt. This figure has been static since the last 5 years. The information from checking at market places shown at least 6 brands of iodized salt imported from East Java. Only one of them does not adequately contain iodine. 

We could trace several reasons of those above serious “negligence” of the Government of Bali in protecting their population. The documentations gathered from the Provincial Government Offices indicated misunderstanding or inappropriate systemic thinking on how to reach USI. It is heavily influenced by the wrong school of thought that the law enforcement at the first place is to control the iodized salt instead of controlling the raw salt or non-iodized salt. The local law that issued by Municipality of Denpasar has shown better target by including the control of raw salt in addition to the more detailed clauses on controlling of iodized salt such as packaging and labeling of iodized salt.

The issuance of district law should be followed immediately by other Kabupatens and Provincial level to stop the distribution of no-iodized salt. Other reason was on the negligence of letting Guris salt farm growing without control. Also it is difficult to accept that local government did not have control on Guris as the landing and un-loading raw salt coming from Madura??

We need a more aggressive local law to control the distribution of non-iodized salt and embark with short term strategy on how to immediately guarantee that only iodized salt enter the kitchen of population in Bali.

V. Conclusion and Recommendation

1.     Conclusion

1)   The stagnant level of households consuming iodized salt at 45% for Bali is mainly due to the pressure of free distribution of raw salt without any control from the Government.

2)   There is  rapid growing of local salt farms in Guris, Pejarakan, Gerokgak Kabupaten Buleleng that produce 7000 MT annually and sufficient to supply 50% of population demand for salt,      

3)   There is huge raw salt import from Madura and Probolinggo, East Java, freely enter the Bali markets to reach consumers. The total import is 6000 MT annually that sufficient to supply 50% demand of consumption salt and industrial salt.

4)   There is rapid growing of salt processing plants without fortifying with iodine, either salt washing plants in Guris or salt boilers in Denpasar and Badung that produce 1750 MT non-iodized salt that freely enter the markets.

5)   There was serious concern at the health sector in Bali and has strongly urged Provincial Government to address the high risk of iodine deficiency disorders (IDD), however there has been no substantial action particularly on  strong local government policy and strategy. The further delay of such policy and strategy will be basically preventing the right of the population in Bali to be protected from the risk of getting IDD. There has been limited technical resource person that could help in developing the local policy and strategy in IDD Control.

6)   There is embryonic effort at the district government by issuing a law to control salt in Denpasar City; however there has been no implementation of the law.