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Direct and Indirect Maritime Security Threats in the Western Indian Ocean

African Maritime Forces Week

By Captain Mark Blaine (Ret.), SIGLA Stellenbosch and SA Navy

Executive Summary

The Western Indian Ocean (WIO) region is a vital route for global commerce and a strategic zone for geopolitical interests. Despite its global and regional importance, its maritime security landscape is increasingly troubled with threats which include piracy and armed robbery, illicit trafficking, illegal, unreported and unregulated (IUU) fishing, maritime terrorism, environmental threat and climate change, geopolitical rivalries and militarization, port security and infrastructure vulnerabilities, and weak maritime governance and limited regional cooperation. These threats have direct and indirect impacts on Africa’s economic, social, and political stability, while also affecting global trade and security. This paper evaluates these threats, levels of response, and outlines strategies for addressing them.

Introduction

The WIO encompasses the coastal states of Somalia, Kenya, Tanzania, Mozambique and South Africa and the island states of Madagascar, Reunion, Mayotte, Mauritius, Comoros and Seychelles.1 Maritime security in the WIO is crucial for the prosperity of the littoral and landlocked East African states and the broader international community as it includes critical sea lanes such as the Mozambique Channel and proximity to the Bab el-Mandeb Strait, which serves as a chokepoint for global oil shipments and commerce.2

According to Mohabeer and Sullivan de Estrada 35% of the global population live in countries bordering the Indian Ocean, there are currently 29 foreign militaries operational in the northwest Indian Ocean, 80% of oil exports transit across this region and 23 of the of the world’s 100 busiest container ports are found in the Indian Ocean.3

The region supports a rich and diverse marine ecosystem that sustains millions of livelihoods while facing a complex array of maritime security threats that undermine regional stability, economic development, and environmental sustainability. Approximately 60 million people in this coastal region depend on the ocean for fishing, shipping and tourism for their livelihoods. As African states pivot to the ocean to support economic growth through blue economy initiatives, maritime security becomes a vital component of sustainable development.4 This paper explores the key maritime security threats in the WIO and their broader impact on Africa and beyond.

Maritime Security Threats in the Western Indian Ocean

Piracy and Armed Robbery at Sea

The WIO has long been a hotspot for maritime piracy, particularly off the coast of Somalia. Although international naval interventions and regional capacity-building have significantly reduced the number of successful hijackings since the height of Somali piracy between 2008 and 2012, the threat remains. Armed groups, driven by economic desperation and governance voids on land, continue to pose risks to commercial vessels, fishing boats, and humanitarian shipments.5

Piracy, particularly off the Somali coast, has declined from its peak in the early 2010s but remains a persistent threat due to the lack of state control and economic instability. Piracy statistics from November 2023 to May 2025 highlight 47 events, including piracy and armed robbery, hijacking, boarding, and suspicious approaches and manoeuvring.6

Piracy in this region has a broader impact beyond immediate security concerns. It increases the cost of shipping due to higher insurance premiums, deters foreign investment in coastal infrastructure, and undermines the confidence of maritime industries. In countries like Somalia and parts of Kenya, piracy is closely linked with other forms of organized crime and conflict, making it a persistent regional threat.7 Piracy in the Horn of Africa remains suppressed but by no means eradicated as the root causes, such as coastal violence, weak economic conditions and crime prevalence are all still present.8

Piracy and armed robbery at sea disrupt trade and increase shipping costs, undermine investor confidence, threaten humanitarian aid routes and lead to militarization of maritime routes.9

Multilateral international coalitions such as Combined Task Force 151 and EU NAVFOR Somalia (Operation Atalanta) have been effective in the suppression of piracy. Regional countries can opt to work together under specific terms or Memoranda of Understanding in combating piracy, armed robbery and other maritime insecurities, such as that between South Africa and Mozambique under Operation Copper. Coastal nations can enhance naval and coast guard capabilities. Engagement with local communities to offer alternatives to piracy can serve to mitigate threats.

Illicit Trafficking 

The WIO is a conduit for various illicit trafficking activities. Narcotics from Asia pass through East African ports enroute to Europe and North America. Arms trafficking fuels conflicts in the Horn of Africa and Central Africa.10

The Western Indian Ocean serves as a corridor for various forms of maritime trafficking. This includes human smuggling, particularly from the Horn of Africa to the Arabian Peninsula, as well as the trafficking of drugs, weapons, and counterfeit goods. The porous maritime borders and vast, under-monitored sea space provide many opportunities for criminal networks to operate. East and Southern Africa are part of the main global heroin and cocaine traffic flows. All the littoral countries except Somalia and Madagascar serve as transit points. Southern Africa is also one of the main methamphetamine trafficking routes.11 A 2019 report indicates that 40 tons of heroin transit the WIO into East Africa annually, while 262 kg of “new” drugs such as cocaine was seized in the region in 2017. Furthermore, the convergence of trafficking routes with terrorist networks in East Africa poses a direct threat to national and regional security.

Illicit trafficking fuels internal conflicts and terrorism, undermines rule of law, corrupts institutions and increases violence and social instability. Efforts to combat illicit trafficking include international partnerships and intelligence sharing (Interpol, UNODC) and national port security enhancements and coastal surveillance. Socio-economic development can reduce incentives for criminality.

Illegal, Unreported, and Unregulated (IUU) Fishing

Fishing provides a major source of protein to the continent and any threat to the sector is a major threat to the food security on the entire continent. IUU fishing depletes fish stocks, damages marine ecosystems, and undermines legitimate economic activities. Foreign vessels exploit weak governance in African waters while IUU fishing can be categorized as one of the most significant threats to maritime security and food security in the WIO.12

Foreign and domestic vessels often engage in unauthorized fishing in exclusive economic zones (EEZs), depleting fish stocks and depriving local communities of critical resources. The lack of effective maritime surveillance, limited enforcement capacity, and corruption exacerbate this problem.13

The economic losses from IUU fishing in Africa are estimated at over $2 billion annually. The annual loss associated with IUU fishing in the SADC is estimated at approximately $40 million for Mozambique and $37 million for Madagascar. While statistics for South Africa are not readily available, it is agreed that the loss is worse than in the remainder of the SADC member states.14

The effect of IUU fishing in the region can be felt in the economic, ecosystem and social spheres. Moreover, IUU fishing often occurs in tandem with other crimes, such as human trafficking and the smuggling of arms and narcotics, further complicating enforcement efforts.

IUU fishing leads to economic losses for local communities, food insecurity, loss of biodiversity and weakening of maritime governance. Regional Fishery Management Organizations (RFMOs), the Indian Ocean Tuna Commission, national maritime patrons and legal reforms and capacity building and international funding for monitoring are among responses to IUU fishing.

Maritime Terrorism

Although rare, the potential for maritime terrorism exists, especially in choke points and ports. Groups such as Al-Shabaab in Somalia and the Houthis in Yemen have threatened port infrastructure in East Africa. While direct maritime terrorist attacks have been limited, the threat remains, especially given the economic and symbolic value of port facilities and coastal cities.15

The vulnerability of critical maritime infrastructure, including ports, oil terminals, and undersea cables, poses a strategic risk to the region. Disruption of these assets can have cascading effects on national economies, regional trade, and global supply chains. Protecting this infrastructure requires both physical security measures and cyber-resilience capabilities.

The relative prosperity and weak institutional systems of the region create an attractive environment and target for transnational terrorist groups. The threat of global terrorism is a further matter of concern due to the known connections between this region and terrorist activity in Africa and beyond. Long and porous borders exacerbated by weak governance, the growing radicalisation of the Southern and Eastern African migrant populations can be seen as contributing factors of a climate conducive to international terrorism and spill-over effects that, although more landward focused, do not exclude the sea.16

Maritime terrorism negatively impacts national and regional security, threatens international shipping and port security, increases insurance and freight costs, and diverts resource from economic development to security. Responses include international coordination through the International Maritime Organization (IMO) and regional agreements, national counter-terrorism strategies and port security upgrades, and regional intelligence sharing and early warning systems.

Geopolitical Rivalry and Militarization

The WIO has become a theatre for strategic competition among global powers including China, the United States, India, and France. Military bases and port acquisitions heighten tensions.17 This global competition increases the risk of confrontation and has the potential to undermine local sovereignty, shift political alliances and increase strategic dependency on foreign powers. Regional dialogue platforms such was the Indian Ocean Rim Association (IORA), strategic balancing by African nations through diversified partnerships, and policy harmonization and regional codes of conduct can mitigate these risks.

Port Security and Infrastructure Vulnerability

Ports located within the WIO region are increasingly exposed to a range of security threats, including cyber-attacks, physical sabotage, and systemic operational inefficiencies. A considerable number of these ports are characterized by outdated or insufficient infrastructure, particularly in relation to cargo scanning technologies, surveillance capabilities, and cybersecurity measures.

The terrorist attacks of September 11, 2001, served as a pivotal moment in global maritime security, catalysing a transformation in port security protocols worldwide. In response, the International Ship and Port Facility Security (ISPS) Code was instituted to enhance the security of ships and port facilities. This regulatory framework remains critical for the effective screening of cargo containers and for mitigating the risks associated with the illicit trafficking of arms, narcotics, and other contraband via maritime routes.

Due to their security, surveillance and inspection gaps, organized criminal networks engaged in trafficking and theft activities particularly target African ports. These groups are not just regional but often linked to broader transnational organized crime syndicates.

Given that these play an indispensable role in the economic development of the continent, threats to ports can create trade disruptions, revenue losses, national security threats, and damage international supply chains.18 Technical assistance and best practice sharing from the IMP and World Customs Organization (WCO), increased investment in infrastructure and cybersecurity, and public-private partnerships for port management can mitigate these threats.

Conclusion

Maritime security in the Western Indian Ocean constitutes a complex and multidimensional challenge that necessitates an integrated approach encompassing direct action, multilateral cooperation, and preventive strategies. Although the African continent disproportionately experiences the impact of these maritime threats, their consequences extend well beyond regional boundaries, carrying significant global implications. Addressing these challenges effectively requires a sustained commitment to strategic collaboration, the promotion of sustainable development, and the establishment of inclusive and accountable governance frameworks aimed at preserving the security and stability of this critical maritime domain.

Captain (Rtd) Mark Blaine is a former combat officer of the South African Navy with close to forty years’ military experience and with command experience of various SA Navy warships. He spent more than four years as Defence Advisor to the South African High Commission in Kenya and completed his master’s degree in maritime security through Coventry University. In the period leading up to his retirement in January 2023, he lectured at the South African Military Academy. He is currently a researcher for the Security Institute for Governance and Leadership in Africa (SIGLA) of Stellenbosch University.

Endnotes

1. S. Mwachireya, J. Ndagala, S.M. Moorgawa, H.R. Ali, J. Ramdrianandrasana, I. Kimirei and V. Bhoyroo, “Ocean Acidification (OA) White Paper: Draft Ocean Acidification Paper for Western Indian Ocean Region,” (unpublished manuscript, 2018), 4. https://wedocs.unep.org/20.500.11822/25701

2. IORA, “IORA Action Plan (2022–2027): Enhancing Regional Cooperation,” Indian Ocean Rim Association, 2022, https://iora.int/maritime-safety-security

3. Raj Mohabeer and Kate Sullivan de Estrada. “Strengthening Maritime Security in the Western Indian Ocean.” Indian Ocean Commission, 2019, 3, https://www.commissionoceanindien.org/wp-content/uploads/2019/10/Strengthening-maritime-security-in-the-western-indian-ocean-policy-brief.pdf

4. Denning Metuge, Amanda T. Lombard and Bernadette Snow, “Policy Brief: Western Indian Ocean Marine Spatial Planning Strategy,” Institute for Coastal and Marine Research, Nelson Mandela Bay University, September 29, 2021, 1. https://nairobiconvention.org/clearinghouse/sites/default/files/WIO%20MSP%20Policy%20Brief_6%20Oct2021.pdf

5. Brigid Gesami, “Maritime Security Threats in Africa,” Academia Letters, Article 3564, 2-3, https://doi.org/10.2139/ssrn.4319050

6. EU NAVFOR Operation Atalanta, “Protecting Sea Lanes and Combatting Piracy,” EU NAVFOR, 2023, https://eunavfor.eu/key-facts-and-figures

7. Gesami, “Maritime Security Threats in Africa,” 2-3.

8. Mohabeer and Sullivan de Estrada, “Strengthening Maritime Security,” 4.

9. Alex Mills, “The Long Shadow of Red Sea Shipping Disruption,” Atlantic Council, January 8, 2024, 1-3, https://www.atlanticcouncil.org/blogs/econographics/the-long-shadow-of-the-red-sea-shipping-disruption/

10. Interpol, Maritime Crime: Global Threats and Regional Responses (Interpol, 2023).

11. United Nations Office on Drugs and Crime, World Drug Report 2023, United Nations Office on Drugs and Crime, https://www.unodc.org/unodc/en/data-and-analysis/world-drug-report-2023.html

12. Martin Purves, “Illegal, Unreported and Unregulated Fishing and Maritime Security in Southern Africa,” in Maritime Security in Southern African Waters, ed. Thean Potgieter and Reiner Pommerin (Sun Press, 2009), 113-116.

13. Food and Agriculture Organization of the United Nations (FAO), The State of World Fisheries and Aquaculture: Towards Blue Transformation (FAO, 2022), https://openknowledge.fao.org/server/api/core/bitstreams/9df19f53-b931-4d04-acd3-58a71c6b1a5b/content/cc0461en.html

14. Maritime Resources Assessment Group, Study and Analysis of the IUU Fishing Situation in the SADC Region and an Estimate of the Economic, Social and Biological Impact of this Situation, Main Report, (MRAG, 2008), 6-7.

15. International Maritime Organization, SOLAS XI-2 and the ISPS Code (IMO, 2021), https://www.imo.org/en/OurWork/Security/Pages/SOLAS-XI-2%20ISPS%20Code.aspx

16. Eric Rosand and Jason Ipe, “Enhancing Counterterrorism Cooperation in Southern Africa,” African Security Review 17, no. 2 (2008), 43-46.

17. Ash Rossiter. “Chasing Basing: Great Power Maneuvering in the Western Indian Ocean,” Trends Research and Advisory, March 30, 2022, https://trendsresearch.org/insight/chasing-basing-great-power-maneuvering-in-the-western-indian-ocean/?srsltid=AfmBOor3gOxjtj7wlC5DJyw9-eg-j1U3XMQp_3CmGv44IizTRSKR36Ij

18. Barthélémy Blédé, “Safeguarding Africa’s Seaports to Safeguard its Economies,” ISS Today, July 26, 2016, https://issafrica.org/iss-today/safeguarding-africas-seaports-to-safeguard-its-economies

References

Afreximbank. “Red Sea Attacks: Impact on African Trade and Macroeconomic Stability.” Afreximbank Research Flashnote, March 30, 2024. https://www.afreximbank.com/reports/31129/

African Development Bank. African Economic Outlook 2024. https://www.afdb.org/en/knowledge/publications/african-economic-outlook

Blédé, Barthélémy. “Safeguarding Africa’s Seaports to Safeguard its Economies.” ISS Today, July 26, 2016. https://issafrica.org/iss-today/safeguarding-africas-seaports-to-safeguard-its-economies

Bueger, Christian and Timothy Edmunds. “Blue Crimes: The Transnational Security Challenges of the Maritime Domain.” Contemporary Security Policy, 40, no. 3 (2019): 263–286.

Bueger, Christian, and Timothy Edmunds. Blue Crime: Governing Maritime Security in the 21st Century. Oxford University Press, 2022.

EU NAVFOR Operation Atalanta.Protecting Sea Lanes and Combating Piracy.” EU NAVFOR, 2023. https://eunavfor.eu/key-facts-and-figures

Food and Agriculture Organization of the United Nations (FAO). The State of World Fisheries and Aquaculture: Towards Blue Transformation. FAO, 2022. https://openknowledge.fao.org/server/api /core/bitstreams/9df19f53-b931-4d04-acd3-58a71c6b1a5b/content/cc0461en.html

Gesami, Brigid. “Maritime Security Threats in Africa.” Academia Letters, 2021. Article 3564. https://doi.org/10.20935/AL3564

Gesami, Brigid and Ngichabe Gregory. “A Brief Guide to Africa’s Maritime Security.” Unpublished manuscript, January 3, 2023. https://dx.doi.org/10.2139/ssrn.4319050

International Maritime Organization. SOLAS XI-2 and the ISPS Code. IMO, 2021. https://www.imo.org/en/OurWork/Security/Pages/SOLAS-XI-2%20ISPS%20Code.aspx

Interpol. Maritime Crime: Global Threats and Regional Responses. Interpol, 2023. https://www.interpol.int/Crimes/Maritime-crime/The-issues

Indian Ocean Rim Association (IORA). “IORA Action Plan (2022–2027): Enhancing Regional CooperationIndian Ocean Rim Association 2022. https://iora.int/maritime-safety-security

Maritime Resources Assessment Group. Study and Analysis of the IUU Fishing Situation in the SADC Region and an Estimate of the Economic, Social and Biological Impact of this Situation. Main Report. MRAG, 2008.

Martin, Guy. “Operation Copper now only with SA and Mozambique.” Defenceweb, March 20, 2014. https://www.defenceweb.co.za/security/maritime-security/operation-copper-now-only-with-sa-and-mozambique/

Metuge, Denning, Amanda T. Lombard and Bernadette Snow. “Policy Brief: Western Indian Ocean Marine Spatial Planning Strategy.” Institute for Coastal and Marine Research, Nelson Mandela University, September 29, 2021. https://nairobiconvention.org/clearinghouse/sites/default/files/WIO%20MSP%20Policy%20Brief_6%20Oct2021.pdf

Mills, Alex. (2024). “The Long Shadow of the Red Sea Shipping Disruption.” Atlantic Council, January 8, 2024. https://www.atlanticcouncil.org/blogs/econographics/the-long-shadow-of-the-red-sea-shipping-disruption/

Mohabeer, Raj and Kate Sullivan de Estrada. “Strengthening Maritime Security in the Western Indian Ocean.” Indian Ocean Commission, 2019. https://www.commissionoceanindien.org/wp-content/uploads/2019/10/Strengthening-maritime-security-in-the-western-indian-ocean-policy-brief.pdf

Mwachireya, S., J. Ndagala, S.M. Moorgawa, H.R. Ali, J. Randrianandrasana, I. Kimirei and V. Bhoyroo. “Ocean Acidification (OA) White Paper: Draft Ocean Acidification Paper for Western Indian Ocean Region.” Unpublished manuscript, 2018. https://wedocs.unep.org/20.500.11822/25701

Purves, Martin. “Illegal, Unreported and Unregulated Fishing and Maritime Security in Southern Africa.” In Maritime Security in Southern African Waters, edited by Thean Potgieter and Reiner Pommerin. Sun Press, 2009.

Rosand, Eric and Jason Ipe. “Enhancing Counterterrorism Cooperation in Southern Africa.” African Security Review 17, no. 2 (2008): 43-46.

Rossiter, Ash. “Chasing Basing: Great Power Maneuvering in the Western Indian Ocean.” Trends Research and Advisory, March 30, 2022. https://trendsresearch.org/insight/chasing-basing-great-power-maneuvering-in-the-western-indian-ocean/?srsltid=AfmBOor3gOxjtj7wlC5DJyw9-eg-j1U3XMQp_3CmGv44IizTRSKR36Ij

United Nations Conference on Trade and Development (UNCTAD). Review of Maritime Transport 2023. UNCTAD, 2023. https://unctad.org/publication/review-maritime-transport-2023

United Nations Office on Drugs and Crime. Maritime Crime Programme Annual Report. UNODC, 2023. https://www.unodc.org

United Nations Office on Drugs and Crime. World Drug Report 2023. https://www.unodc.org/unodc/en/data-and-analysis/world-drug-report-2023.html

Featured Image:  Somali men look out across Mogadishu’s fishing harbour in the early morning as fishermen land their catch and transport their fish to the market in the Xamar Weyne district of the Somali capital, 16 March, 2013. (AU-UN IST photo by Stuart Price via Wikimedia Commons)

Connecting Ocean: The Role of Non-African States in African Regional Maritime Security

African Maritime Forces Week

By Vice Admiral Ignacio Villanueva Serrano, Operation Commander, EU NAVFOR ATALANTA

The waters surrounding the Horn of Africa and the Western Indian Ocean are a vital confluence of global and local interests, serving as essential conduits for international trade, energy security, and the livelihoods of coastal communities.

These maritime spaces, encompassing strategic choke points like the Bab el-Mandeb strait, are both a lifeline and a point of vulnerability, confronted by threats such as piracy, illegal fishing, and transnational organized crime. In an era of increasing international competition and emerging security challenges, non-African states are indispensable in supporting African regional maritime security, working alongside local actors to safeguard these critical domains.

As the Operation Commander of EU NAVFOR ATALANTA, I offer insights into how external and regional stakeholders collaborate to pursue shared maritime security objectives, drawing on our operational experience and acquired expertise.

The Global and Local Significance of African Waters

The Western Indian Ocean is a global commons, linking continents and enabling the flow of goods, energy, and people. Its strategic importance is amplified by chokepoints like the Bab el-Mandeb Strait, which are critical to fuel and food security for global shipping and regional stability. These waters are pivotal to international supply chains and the economic well-being of African littoral states, yet they remain under threat. In the Horn of Africa, piracy persists as a latent risk, with Pirate Action Groups (PAGs) still active in Somalia despite significant reductions since its peak over a decade ago. Recent incidents highlight a resurgence, underscoring the need for continued vigilance. Meanwhile, attacks on sea lines of communication in the Red Sea, Gulf of Aden, and Arabian Sea by groups employing sophisticated weaponry, such as unmanned aerial vehicles (UAVs) and anti-ship ballistic missiles (ASBMs), further complicate the security landscape, impacting freedom of navigation and global trade. Beyond piracy, transnational organized crimes, such as narcotics trafficking, human smuggling, and illegal fishing, pose additional challenges, compounded by arms smuggling networks that supply advanced weapons, often transported via maritime routes from distant origins.

The interconnected nature of these threats demands a robust, collaborative response where non-African states, particularly through the European Union, provide essential support to regional efforts. Recent assessments indicate a low piracy threat in the Gulf of Aden and parts of the Somali Basin, though a realistic possibility of attacks persists. Conflict-related threats in the Red Sea remain severe for vessels linked to specific nations, reflecting the dynamic risk environment we navigate.

The Contribution of Non-African States

Non-African states have engaged decisively in this complex environment, motivated by strategic, economic, and humanitarian imperatives. EU NAVFOR ATALANTA, launched in 2008, is a testament to this commitment. Initially established to counter Somali-based piracy, our operation has evolved into a broader contributor to maritime security, with a mandate extended until February 2027. This updated mandate encompasses protecting merchant shipping and World Food Program (WFP) vessels, countering weapons and narcotics smuggling, and monitoring illegal, unreported, and unregulated (IUU) fishing, reflecting the EU’s enduring commitment to stability in the region. Our achievements—reducing piracy through naval patrols, maritime surveillance, and legal prosecutions—demonstrate the tangible impact of external involvement.

Throughout our mission, we have handed over 177 suspected pirates for trial across jurisdictions including Kenya, Seychelles, Mauritius, and EU member states, with 145 successfully convicted. In a particularly active year, we transferred dozens of pirates captured during multiple incidents, reflecting a robust deterrent effect. The knowledge that apprehension leads to prosecution and lengthy sentences in regional or international jurisdictions discourages pirate activity, contributing to a decline in attacks over time. Our success rests on robust cooperation with military partners, a strong military-industry partnership, advanced maritime security architecture, and effective defense diplomacy.

EUNAVFOR Operations and associated contributors deploy naval assets, such as frigates, patrol vessels, and maritime patrol aircraft, alongside helicopters and unmanned aerial vehicles (UAVs) to patrol key areas like the South Somali Basin, Gulf of Aden, Arabian Sea, and Red Sea. Recent operations have seen vessels under our operational control conduct joint activities with allied task forces, share intelligence on smuggling routes, and enhance local maritime capabilities through engagements with regional navies like Kenya’s. Maritime patrol aircraft, flying sorties along the Somali coast and the Red Sea, bolster our surveillance. At the same time, port visits to strategic locations like Mombasa, Victoria, Salalah, and Djibouti facilitate maintenance, replenishment, and coordination.

Our cooperation with INTERPOL further reinforces information exchange. In matters relating to illegal, unreported, and unregulated fishing (IUU) within Somalia’s Exclusive Economic Zone, coordination is maintained directly through INTERPOL’s National Central Bureau in Somalia. This intelligence link enhances our ability to detect and respond to transnational maritime crimes with international reach, amplifying our operational impact.

The transformation of our Maritime Security Centre Indian Ocean (MSCIO) into a modernized platform, completed with upgrades set for 2025, features four integrated applications—Registration, Alert, Analysis, and Blog—bolstering situational awareness. The MERCURY platform is central to this evolution, our primary tool for secure, real-time information sharing with other naval partners and maritime law enforcement agencies in the Western Indian Ocean.

An agreement with the International Maritime Organization (IMO) provides access to Long Range Identification and Tracking (LRIT) data from over 80 Flag States, significantly strengthening our tracking capabilities. As of early April 2025, over 1,000 cargo and tanker vessels are registered within our voluntary reporting area, with nearly 50% of daily entrants actively participating, underscoring industry trust in our framework. Advanced data collection and analysis, leveraging automatic identification system (AIS), LRIT, and satellite imagery, remain pivotal in tracking vessels and monitoring threats, from piracy to conflict-related risks in the Red Sea.

Partnership Between External and Local Actors

Effective maritime security hinges on collaboration between non-African and African stakeholders, harmonizing external expertise with regional ownership. Our partnership with the shipping industry exemplifies this synergy, with over 4,200 cargo and tanker vessels operating within our voluntary reporting area as of early April 2025. Our maritime security center fosters trust through vessel registration and incident reporting, supported by a modernized system with intuitive interfaces and offline capabilities. A standardized reporting framework enhances communication and interaction with the shipping industry, making the registration and incident reporting processes more streamlined and efficient.

The Indo-Pacific Regional Information Sharing (IORIS) platform, a non-binding yet widely adopted information-sharing mechanism governed by a Steering Committee, is a key enabler of multinational maritime cooperation.

EUNAVFOR ATALANTA has played a leading role in shaping IORIS by participating in thematic and geographic Community Areas (CAs), including search and rescue, pollution response, and maritime interdiction. Through initiatives like the ALDABRA II exercise and training programs in Seychelles, IORIS has demonstrated its potential as a unifying platform. Initial lack of coordination with other maritime coordination entities like the United Kingdom Maritime Trade Operations (UKMTO) has been resolved through persistent engagement, achieving unprecedented cooperation that benefits the naval community.

The Shared Awareness and Deconfliction (SHADE) Forum has evolved into a groundbreaking platform that brings together naval forces from across the globe alongside industry stakeholders. Far beyond a series of routine meetings, SHADE represents a genuine operational partnership where commercial shipping actors actively participate and hold an equal voice in shaping maritime security decisions.

We have also formalized cooperation with regional maritime centers such as MSC Oman, establishing protocols for real-time information exchange, expertise sharing, and coordinated responses. These bilateral agreements underscore our commitment to empowering regional actors and reinforcing the collaborative fabric of maritime governance in the Western Indian Ocean.

Private maritime security companies (PMSCs) serve as force multipliers, providing deterrence and real-time intelligence. Their tactical presence on vessels, tested by PAGs, remains effective, though adaptations to counter sophisticated threats like drones and missiles through enhanced crew training and citadel procedures strengthen our collective response.

Joint operations with allied task forces like the Combined Maritime Forces (CMF) further amplify our reach. Regional frameworks amplify this collaboration, with African navies committing to joint efforts to protect maritime territories. ATALANTA actively supports the Djibouti Code of Conduct (DCoC), adopted in 2009 under IMO facilitation and expanded via the Jeddah Amendment in 2017 to address broader threats like trafficking and IUU fishing. Our participation in DCoC high-level meetings and training workshops enhances regional capacity and coordination in the Western Indian Ocean and Gulf of Aden. Exercises with regional partners, such as Kenya, Djibouti, and Seychelles, bolster interoperability and local capacity through maritime interdiction training and key leader engagements, reinforcing stability.

Finally, I just recently finished a trip to India to improve the operational coordination in the area, to provide adequate points of contact (POCs) for both ATALANTA and Indian Navy Maritime Security Centers, and to set the scenario for an international maritime exercise that helps to recreate possible engagements at sea and ease future cooperation.

Adapting to Regional Realities

Our experience underscores that uniform solutions are impractical. Somalia’s fragile governance and absent navy necessitate direct intervention authorized by international resolutions. We adapt by focusing on trust-building, regionally led cooperation, and a robust legal finish. Advanced alert and analysis tools tailor responses to local threats, while efforts to enhance judicial capacity in regional states ensure effective prosecution.

Somalia’s onshore instability, marked by militant activities targeting supply lines and military operations in regions like Lower Shabelle and Bari, indirectly influences maritime security. However, direct threats to our assets remain highly unlikely. Yemen’s conflict, with resumed Houthi activities following airstrikes, heightens risks in the Red Sea, though merchant shipping has seen no recent attacks as of early April 2025.

The resurgence of piracy, distinct from Red Sea threats, requires tailored legal and operational frameworks. Economic motives, illegal fishing, and political instability fuel this resurgence, with a moderate threat persisting in parts of the Somali Basin and Gulf of Aden. Recent cases in territorial waters, often involving fishing vessels, pose unique challenges due to legal and jurisdictional complexities, yet our agile response, deploying assets within 48 hours, mitigates risks.

Looking ahead, I anticipate one or two piracy incidents in the near term, a manageable level given our current capabilities, though uncertainties around local licensing and corruption complicate our understanding.

Tackling Root Causes and Future Challenges

Non-African states address maritime insecurity’s root causes, though challenges persist. In Somalia, piracy’s decline reflects naval deterrence and best management practices, yet poverty, instability, and organized crime endure. Capacity-building initiatives strengthen law enforcement, constrained by onshore conflicts and competing priorities. Our narcotics seizures, totaling nearly 16,000 kilograms, including over 3,000 kilograms of hard drugs like heroin, disrupt trafficking networks. However, many suspects are released due to jurisdictional limits, highlighting the need for broader legal frameworks.

Our operation has shifted from focusing solely on counter-piracy to a broader maritime security role, contributing to the Western Indian Ocean’s stability. Resource constraints limit full implementation, but focused operations targeting illegal fishing yield actionable insights. Future enhancements to our maritime security platform, including AI integration and expanded vessel tracking, will improve threat detection and address adaptive risks from smuggling networks and conflict spillovers. Sustained funding and mandate adjustments remain essential to counter emerging challenges.

Conclusion

Non-African states are vital partners in African regional maritime security, providing resources, expertise, and coordination that complement local efforts. EUNAVFOR ATALANTA’s engagement, enhanced by modernized tools, industry partnerships, and capacity-building, secures critical sea lanes. Our success depends on trust, shared awareness, and tailored approaches. Naval coordination, PMSCs, legal innovation, and platforms like MERCURY and IORIS bridge the gap between external and local actors. As threats evolve, from piracy’s resurgence to sophisticated attacks, sustaining these partnerships, leveraging advanced capabilities, and addressing onshore drivers remain imperative to ensure that this connected ocean fosters stability rather than insecurity. Our strategic achievements position EUNAVFOR ATALANTA embedded in the regional maritime security architecture with high international recognition and represent a tangible tool for the EU’s objectives and interests in the West India Ocean.

VADM Ignacio Villanueva Serrano has been the Operation Commander of Operation Atalanta, EU NAVFOR since November 2023. A graduate of the Spanish Naval Academy, he began his career as a Naval Aviator, later commanding several naval platforms before becoming a staff officer in the International Relations Department at the Spanish Navy headquarters. He has extensive NATO experience in both operational and staff officer defense planning, NATO expeditionary operations and the Combined Force Maritime Component Commander for NATO Flag Officers. VADM Villanueva earned a Master of Arts in National Security and Strategic Studies from the US Naval War College in Newport, Rhode Island and has been a Professor at the High Defense Studies Center in Madrid, Spain.

Featured Image: EUNAVFOR Atalanta Joint Sea Activity, supporting UNODC’s Global Maritime Crime Programme (GMCP) and Somali Fisheries Enforcement officers, as part of UNODC organised training activity Ex Sea Spirit in support of UNSCR 2662/2022. (EUNAVFOR photo)

Diversifying Threats to Maritime Security in the Western Indian Ocean Region 

African Maritime Forces Week

By Captain Harifidy A. Alex Ralaiarivony, Director of Regional Maritime Information Fusion Centre (RMIFC) 

Introduction: The Strategic Importance and Threat Landscape of the Western Indian Ocean (WIO) Region 

The WIO region serves as an essential gateway linking Asia, the Pacific, and the Middle East, occupying a central position in the world’s economic and strategic balance. This criticality is underscored by the significant maritime traffic transiting through or operating within the region, including major routes and chokepoints like the Red Sea, Bab-El-Mandeb Strait, and the Strait of Hormuz. This latter alone sees the passage of 20.9 million barrels of crude oil and 130 ships daily, highlighting the region’s importance for global energy exports.1

The year 2024 demonstrated a notable intensification in the complexity and diversity of threats to maritime security in this vital area. While traditional concerns such as illicit trafficking (drugs, arms, human beings) and illegal fishing persist, new challenges, particularly the Houthi attacks in the Red Sea and a re-emergence of maritime piracy, demanded significant attention. The RMIFC, through its fundamental missions of collecting and disseminating critical maritime information, actively participated in regional operations to respond to these challenges. 

The overall number of maritime security events recorded within the RMIFC’s area of interest has shown a steady increase over the past eight years, from 640 events in 2017 to 1145 events in 2024.2

Key elements contributing to the RMIFC’s ability to address these events include the expansion of its information exchange processes and efforts to build and maintain information sharing networks. The regional maritime security architecture, comprising regional (RMIFC and Regional Centre for Operational Co-ordination [RCOC]) and national centers and liaison officers, interacts with international communities and benefits from technical support and cooperation. Building on the foundation of the Program for the Promotion of Maritime Security (MASE) (2010-2023), which enhanced maritime security and created an enabling environment for economic development, the current EU-funded Safe Seas Africa Program (SSA) (signed July 2024) aims to consolidate and expand these achievements by strengthening the regional architecture, capacities of information centers, operational coordination, and national centers.3 The RMIFC’s main objectives include processing maritime information to create Maritime Situational Awareness and a Comprehensive Regional Maritime Picture, supporting regional maritime operations, serving as an information sharing platform, promoting cooperation, and contributing to reports and studies.

Salient Threats in 2024 

While all maritime security threats in the Eastern and Southern Africa and the Indian Ocean (ESA-IO) region warrant attention, some demonstrated particular salience in 2024. 

Maritime Extension of Conflicts (Red Sea Crisis) 

This category saw the most significant increase in 2024, accounting for 128 out of 175 total acts of violence at sea, compared to only 69 incidents of maritime violence in 2023.4 The crisis stemmed from Houthi attacks starting in November 2023. These attacks initially targeted Israeli-linked vessels but expanded to include vessels of US and UK interest following airstrikes against the Houthis, and eventually, other vessels without clear affiliation. The main modes of action identified include pretending to be Yemeni authorities, using unmanned aerial vehicles (UAVs or drones), manned skiffs with weapons, and anti-ship missiles (terminal guided and ballistic). While the effectiveness of these methods was estimated to be less than 10%, they caused serious consequences, including fatalities and severe damage to vessels. This maritime extension of the conflict is undeniably the most salient new kinetic threat due to its direct impact on international shipping and the sheer volume of incidents recorded in this category. 

Figure 1: Evolution of Violent Acts at Sea5

Piracy 

Potentially linked to the unrest caused by the Houthi attacks and the subsequent reorientation of naval resources, piracy showed a concerning resurgence in 2024. While the phenomenon remains below the endemic levels of 2008-2013, 18 incidents classified as piracy were recorded in 2024, a sharp increase compared to previous years, and a notable rise since late 2023. This resurgence, particularly in the Somali Basin, reintroduces a threat that had been strongly contained for years, opening a window of opportunity for pirate networks. The pirates’ strategy involves hijacking fishing dhows to use as mother ships to attack larger vessels up to 600 nautical miles or more off the coast. The report notes that most pirated vessels did not have Private Armed Security Teams (PAST). 

Maritime Incidents 

While not inherently criminal, the significant increase in maritime incidents in 2024 highlights a critical safety and security challenge. A total of 512 maritime incident events were recorded, a 20% increase compared to 426 in 2023.6 This surge was particularly notable in the sub-categories related to pollution and accidents. Increased traffic, potentially due to the re-routing around the Cape of Good Hope, and the use of vessels in poor condition navigating bad weather, are identified as main factors contributing to incidents and loss of life. Suspicious Activity Reporting (SAR) and Medical Evaluation (MEDEVAC) operations also saw a considerable increase (8% and 16% respectively), indicating increased demands on response capabilities. The potential for major oil spills, such as the threat posed by the attack on MV Sounion, remains a high-risk incident within this category.

Illicit Trafficking 

Illicit trafficking, particularly of drugs and arms, continues to pose a significant and persistent challenge to regional stability.7 While the total quantity of drugs seized (42.24 tons) was significantly lower in 2024 compared to the preceding years (over 100 tons in 2021-2023), the number of drug smuggling incidents (127) remains high.8 This paradox is partly attributed to the Red Sea crisis diverting naval resources traditionally engaged in counter-narcotics missions. The northern Indian Ocean is the primary area for seizures, linked to proximity to production areas, though transshipments occur along routes towards the East African coast. Six cases of weapon and drone trafficking were documented, including arms destined for Houthi rebels.

Figure 2: Quantity of Drugs Seized, 2017 – 20249

Illegal, Unreported and Unregulated (IUU) Fishing 

IUU fishing is recognized as a major and ongoing challenge that threatens marine ecosystems, the blue economy, food security, and can contribute to social conflict and fuel criminal networks. The RMIFC recorded 69 incidents related to IUU fishing in 2024.10 While the total number is lower than trafficking incidents, the persistent nature and widespread environmental and economic impacts make it highly salient, particularly for coastal African states dependent on marine resources. IUU fishing also may contribute to the resurgence of piracy. 

Other Threats (Terrorism, Cybercrime) 

Maritime terrorism incidents recorded in 2024 were few (2 events in Mozambique) but involved kidnappings and arrests of suspected terrorists near coastal areas, indicating insurgents maintain freedom of movement by boat in certain regions. Maritime cybercrime saw only one recorded event (hacking of the US Fifth Fleet), but the report highlights significant potential vulnerabilities in ports, vessels, and data systems, with potential for major disruption and financial loss.

Impacts Extending into Africa and Beyond 

The impacts of these maritime security threats extend significantly into African coastal states and have broader international consequences. The most direct and widespread economic impact in 2024 stemmed from the Red Sea crisis. The reorientation of shipping flows towards the Cape of Good Hope disrupted usual routes. This has resulted in a very sharp increase in insurance premiums, a lengthening of sea routes by almost 10 days (reducing vessel and container availability), and a collapse in revenues for Egypt from the Suez Canal transit.11 The maritime sector has been forced to reorganize permanently, with new alliances and logistics hubs emerging, suggesting a return to previous traffic levels is not expected soon. Piracy resurgence also increases costs for security, insurance, and potential ransom payments.12 IUU fishing losses, estimated at millions of dollars per year, harm local economies and prevent job creation in the blue economy.13 Illicit trafficking, particularly of drugs and arms, fuels terrorist and criminal networks and undermines regional stability. Arms trafficking linked to conflict zones further destabilizes the region, while ransom money from piracy can influence local politics and increase criminal activities. Weak governance and lawlessness in turn can enable criminal groups, including pirates, to gain control over institutions. Injury, loss of life, and environmental degradation result from all of these threats. 

Response Strategies: Direct, Multilateral, and Mitigation

Effectively addressing these diverse threats requires a comprehensive approach involving actions at national, regional, and international levels. National governments and their maritime agencies play a crucial role in responding directly to threats within their jurisdiction or involving their flagged vessels through law enforcement and patrols and strengthening laws and regulations. National maritime agencies conduct SAR and MEDEVAC operations, directly saving lives at sea. Anti-pollution teams respond to spills. Campaigns to inform local communities about risks and engage them in conservation are direct local actions. Implementing robust cybersecurity systems, training staff, and developing incident response plans are direct actions for shipping companies and ports. Merchant vessels can adhere to Best Management Practices (BMP) (version 5 recommended for piracy) and employ Private Armed Security Teams (PAST).14

Going beyond national responses, given the transnational nature of most maritime threats, multilateral cooperation is critical to successful mitigation. The Regional Maritime Security Architecture in the WIO region is built on this principle. The Regional Maritime Information Fusion Centre (RMIFC) is central to the regional mechanism, enabling information exchange and coordination. Its ability to fuse data from various sources is key to building maritime situational awareness for both national and international agencies. The European Union’s SafeSeas Africa (SSA) program specifically supports these centers.15 Programs like MASE and SSA aim to strengthen the technical, material, and human capacities of regional and national centers. Workshops and Tabletop exercises enhance collaboration and information sharing frameworks.16 

RCOC and international partners collaborate on joint operations targeting specific threats.17 Multinational forces like the Combined Maritime Force (CMF) and the Combined Task Force (CTF) 150 that operates underneath it, conduct counter-narcotics operations. EUNAVFOR operations (ATALANTA, ASPIDES) respond to piracy and the Red Sea crisis.18

Private industry plays a role as well. Shipping interests have re-routed traffic around the Cape of Good Hope to mitigate the risk in the Red Sea, though this is not without its own set of challenges. The permanent reorganization of the maritime industry with new alliances and logistics hubs is a form of long-term adaptation. Increased insurance premiums are a market-based mitigation of financial risk. Adherence to safety regulations and BMP5 mitigates the risk of incidents and piracy. 

Putting all these together, strengthening early warning systems and climate change adaptation mitigate the impact of natural events, which can exacerbate other vulnerabilities. Improving information sharing and coordination of operations mitigates the potential for major maritime disasters, even if incidents occur. While complex, addressing underlying factors such as poverty, lawlessness, and IUU fishing (by strengthening governance, promoting sustainable practices, developing the blue economy) can help mitigate the conditions that fuel piracy and trafficking. Efforts to reduce the demand for illegal wildlife products also contribute to mitigation. Developing and strengthening oil spill contingency plans (regional and national) and having trained response teams in place are key to mitigating the environmental damage from pollution incidents. Waste reduction initiatives and clean-up campaigns mitigate the impact of marine litter on ecosystems like coral reefs.

Conclusion 

The maritime security landscape in the WIO region is dynamic and increasingly challenging. The RMIFC Activity Report 2024 clearly illustrates that while persistent threats like IUU fishing and illicit trafficking remain significant, the resurgence of piracy and, particularly, the maritime extension of regional conflicts in the Red Sea introduced critical new dimensions in 2024. These threats have profound and far-reaching impacts, affecting economic stability, human safety, environmental health, and regional governance across Africa and beyond. The Red Sea crisis dominated in terms of direct kinetic attacks and immediate global economic disruption in 2024, while IUU fishing and illicit trafficking represent high-volume, persistent challenges that fuel criminal networks and undermine long-term sustainability. The increase in maritime incidents highlights the growing pressures on safety and response capabilities in busy waterways, exacerbated by re-routing. 

Responding effectively requires a multi-pronged approach. Direct actions by national forces and ship operators are essential for immediate response and deterrence. However, the transnational nature of these threats mandates robust multilateral cooperation through established Regional Maritime Security Architecture mechanisms like the RMIFC and RCOC, supported by international partners and joint operations. Furthermore, strategies focused on mitigation are necessary to address the broader consequences of these threats, from economic disruption and pollution to the underlying conditions that enable criminal activity. 

Future policy actions should prioritize sustaining and enhancing the regional maritime security architecture, fostering information sharing and coordination, building national capacities, and ensuring resources are available to address both persistent challenges and emerging crises. Continued vigilance and collaborative action, informed by timely and comprehensive data from centers like the RMIFC, are paramount to safeguarding the vital maritime domain of the WIO region for the benefit of all stakeholders.

Captain Harifidy A. Alex Ralaiarivony is the director of the Regional Maritime Information Fusion Center in Antanarivo, Madagascar. He is the former Head of International Relations in the Madagascar Ministry of Defence. Captain Ralaiarivony holds a Master 2 (M2) in Strategy, Defense, Security and Conflict and Disaster Management from the Center for Research and Political and Strategic Studies – University of Yaoundé II (Centre de Recherche et d’Etudes Politiques et Stratégiques -Université de Yaoundé II); earned a Secondary Military Teaching Certificate from the International Higher War School of Yaoundé (Ecole Superieure Internationale de Guerre de Yaoundé), and a Naval Higher Studies Diploma from the French Naval Academy. He is currently pursuing a degree in international law, international economics, and politics at the Center for Diplomatic and Strategic Studies in Madagascar.

Endnotes

1. “United States Energy Information Administration (EIA), “The Strait of Hormuz is the World’s Most Important Oil Transit Chokepoint,” November 21, 2023. https://www.eia.gov/todayinenergy/detail.php?id=61002 

2. Regional Maritime Information Fusion Centre, Annual Report 2024

3. EIA, “The Strait of Hormuz,” 2023.

4. Regional Maritime Information Fusion Centre, Annual Report 2024.

5. Regional Maritime Information Fusion Centre, Annual Report 2024.

6. Regional Maritime Information Fusion Centre, Annual Report 2024

7. “Indian Navy retakes merchant ship from hijackers in the Arabian Sea.” USNI News, January 7, 2024. https://news.usni.org/2024/01/07/indian-navy-retakes-merchant-ship-from-armed-attackers-in-the-arabian-sea 

8. Regional Maritime Information Fusion Centre, Annual Report 2024.

9. Regional Maritime Information Fusion Centre, Annual Report 2024.

10. Regional Maritime Information Fusion Centre, Annual Report 2024.

11. “Regional Challenges Cost Egypt around $7 billion in Suez Canal Revenues,” December 26, 2024, Reutershttps://www.reuters.com/world/africa/regional-challenges-cost-egypt-around-7-bln-suez-canal-revenues-2024-sisi-says-2024-12-26/

12. Abdiqani Hassani, “Somali Pirates say Hijacked Ship MV Abdullah Released after $5 million Ransom was Paid,” Reuters, April 14, 2024, https://www.reuters.com/world/africa/somali-pirates-say-they-hijacked-ship-mv-abdullah-released-after-5-million-2024-04-14.

13. Dan Collyns, “Illegal Fishing Spurs Billions in Losses for Developing Countries, Study Says,” The Guardian, October 26, 2022, https://www.theguardian.com/environment/2022/oct/26/illegal-fishing-billions-losses-developing-countries.

14. Baltic and International Maritime Council, International Chamber of Shipping, International Group of P&I Clubs, Intertanko, and Oil Companies International Marine Forum, BMP5: Best Management Practices to Deter Piracy and Enhance Maritime Security in the Red Sea, Gulf of Aden, Indian Ocean and Arabian Sea (Maritime Global Security, 2018), https://www.maritimeglobalsecurity.org/media/okxlfxae/bmp5-low_res.pdf.

15. Sedrick Nicette, “Seychelles and IOC Countries Partner with EU for Safe Seas Africa Programme,” Seychelles News Agency, July 4, 2024, https://www.seychellesnewsagency.com/articles/20836/Seychelles+and+IOC+countries+partner+with+EU+for+Safe+Seas+Africa+programme

16. United Nations Office on Drugs and Crime, “RECOPORT ESA 25: A Strategic Exercise to Strengthen Port Security in Eastern Africa and the Indian Ocean,” February 3, 2025, https://www.unodc.org/easternafrica/en/Stories/recoport-esa-25_-a-strategic-exercise-to-strengthen-port-security-in-eastern-africa-and-the-indian-ocean.html

17. Indian Ocean Commission, “Operation Levante 2: A Regional Maritime Security Operation,” August 23, 2024, https://www.commissionoceanindien.org/wp-content/uploads/2024/08/240823_Press-release-Levante2_ENG.pdf

18. Nicette, “Seychelles and IOC Countries Partner.”

References

Baltic and International Maritime Council, International Chamber of Shipping, International Group of P & I Clubs, Intertanko, and Oil Companies International Marine Forum, BMP5: Best Management Practices to Deter Piracy and Enhance Maritime Security in the Red Sea, Gulf of Aden, Indian Ocean and Arabian Sea (Maritime Global Security, 2018), https://www.maritimeglobalsecurity.org/media/okxlfxae/bmp5-low_res.pdf 

Collyns, Dan. “Illegal Fishing Spurs Billions in Losses for Developing Countries, Study Says,” The Guardian, October 26, 2022. https://www.theguardian.com/environment/2022/oct/26/illegal-fishing-billions-losses-developing-countries 

European Union Naval Force ATALANTA. “Merchant Vessel Basilisk Liberated,” May 24, 2024. https://eunavfor.eu/news/merchant-vessel-basilisk-liberated 

Hassani, Abdiqani. “Somali Pirates say Hijacked Ship MV Abdullah Released after $5 million Ransom was Paid.” Reuters, April 14, 2024. https://www.reuters.com/world/africa/somali-pirates-say-they-hijacked-ship-mv-abdullah-released-after-5-million-2024-04-14/ 

“Indian Navy retakes merchant ship from hijackers in the Arabian Sea.” USNI News, January 7, 2024. https://news.usni.org/2024/01/07/indian-navy-retakes-merchant-ship-from-armed-attackers-in-the-arabian-sea 

Indian Ocean Commission. “Operation Levante 2: A Regional Maritime Security Operation,” August 23, 2024. https://www.commissionoceanindien.org/wp-content/uploads/2024/08/240823_Press-release-Levante2_ENG.pdf 

“Madagascar: Deux Bateaux de Migrants Somaliens Retrouvés à la Dérive près de Nosy Be.” RFI, November 24, 2024. https://www.rfi.fr/fr/afrique/20241124-madagascar-deux-bateaux-de-migrants-somaliens-retrouv%C3%A9s-%C3%A0-la-d%C3%A9rive-pr%C3%A8s-de-nosy-be 

Menear, Harry. “The Carbon Cost of Disruption in the Suez and Panama Canals.” Supply Chain Strategy, April 5, 2024. https://supplychainstrategy.media/blog/2024/04/05/the-carbon-cost-of-disruption-in-the-suez-and-panama-canals

Nicette, Sedrick. “Seychelles and IOC Countries Partner with EU for SafeSeas Africa Programme.” Seychelles News Agency, July 5, 2024. https://www.seychellesnewsagency.com/articles/20836/Seychelles +and+IOC+countries+partner+with+EU+for+Safe+Seas+Africa+programme 

“Regional Challenges Cost Egypt around $7 billion in Suez Canal Revenues.” Reuters, December 26, 2024. https://www.reuters.com/world/africa/regional-challenges-cost-egypt-around-7-bln-suez-canal-revenues-2024-sisi-says-2024-12-26/?utm_source=chatgpt.com 

Regional Maritime Information Fusion Centre. Annual Report 2024. https://www.ifc.org.sg/ifc2web/Publications/Annual%20Report/2024/Annual%20Report%202024%20(Main).pdf 

United Nations Office on Drugs and Crime. (2025, February 3). “RECOPORT ESA 25: A Strategic Exercise to Strengthen Port Security in Eastern Africa and the Indian Ocean,” February 3, 2025. https://www.unodc.org/easternafrica/en/Stories/recoport-esa-25_-a-strategic-exercise-to-strengthen-port-security-in-eastern-africa-and-the-indian-ocean.html 

United States Energy Information Administration (EIA), “The Strait of Hormuz is the World’s Most Important Oil Transit Chokepoint,” November 21, 2023. https://www.eia.gov/todayinenergy/detail.php? id=61002 

Featured Image: SOMALIA (Oct. 3, 2008) The crew of the merchant vessel MV Faina stands on the deck after a U.S. Navy request to check on their health and welfare. (U.S. Navy photo by Mass Communication Specialist 2nd Class Jason R. Zalasky)

Escalating Threats to Maritime Security in the Western Indian Ocean Region

African Maritime Forces Week

By Brigadier General John M. Waweru (Ret.), IMO Consultant

Introduction 

The Western Indian Ocean Region (WIO) holds substantial geopolitical and economic importance due to its location along vital international sea lanes, facilitating maritime trade between Asia, Africa, and Europe. Approximately 80% of the world’s seaborne oil trade transits through these waters, underscoring their global relevance.1 Key chokepoints such as the Bab el-Mandeb Strait enhance this strategic importance. However, the region faces escalating maritime threats, including kinetic attacks on shipping, illegal, unreported, and unregulated (IUU) fishing, illicit trafficking, piracy, and terrorism.2 These challenges compromise economic stability and pose broader threats to regional and global security.

Salient Threats to Regional Maritime Security 

Kinetic Attacks on Merchant Shipping in the Red Sea 

Kinetic attacks in the Red Sea, often attributed to the ongoing conflict in Yemen, have significantly threatened global maritime trade. Armed groups such as the Houthis have targeted commercial vessels with missiles and drones, endangering crew safety and destabilizing global energy supplies.3 These incidents have increased shipping insurance premiums and triggered route deviations, inflating global trade costs. 

Illegal, Unreported, and Unregulated Fishing (IUUF) 

IUU fishing severely affects economic and ecological systems in the WIO. Coastal African states—including Kenya, Tanzania, Somalia, and Mozambique—report annual losses in the billions due to illegal fishing practices.4 These activities deplete marine stocks, disrupt food security, and exacerbate unemployment and migration pressures. The environmental degradation caused by IUUF also threatens long-term sustainability of the blue economy.5

Illicit Trafficking 

The WIO is a conduit for various forms of illicit trafficking, including narcotics, weapons, human smuggling, and wildlife trafficking. The region’s porous maritime borders allow transnational criminal networks to flourish, undermining governance and fueling corruption.6 Illicit trafficking also enables the financing of insurgencies and extremist movements, further destabilizing coastal and inland regions.7

Terrorism and Piracy 

Although Somali piracy has declined since its 2011 peak, emerging incidents suggest a possible resurgence.8 Moreover, terrorist groups have reportedly leveraged maritime spaces for logistical support, recruitment, and attacks—especially in regions around Lamu and the Gulf of Aden.9 The fusion of terrorism and piracy heightens risk for both commercial vessels and regional maritime governance. 

Comparative Salience and Extended Impact 

Kinetic attacks and IUU fishing are particularly impactful due to their economic consequences and global spillover effects. Strategic chokepoints such as the Bab el-Mandeb amplify the risks of kinetic threats, while IUUF contributes directly to ecosystem collapse, economic displacement, and regional instability.10 These phenomena also contribute to migration crises, fuel maritime militarization, and alter trade patterns—creating ripple effects in Europe, Asia, and beyond.11 

Strategic Response and Mitigation Approaches 

Direct Responses 

IUU fishing can be curtailed through capacity-building, improved monitoring, and the use of satellite surveillance technology. Strengthening legal frameworks and investing in regional fisheries governance are also critical steps.12

Multilateral Approaches 

Due to their cross-border nature, threats like piracy and terrorism necessitate collective action. Regional cooperation through the Djibouti Code of Conduct and global coalitions like the Combined Maritime Forces has improved information sharing and joint patrol capabilities.13 Diplomatic solutions addressing political drivers of conflict—especially in Yemen and Somalia—are equally crucial. 

Threat Mitigation 

Illicit trafficking is best addressed through enhanced maritime domain awareness, harmonized regional legislation, and anti-corruption initiatives. Developmental interventions targeting root causes—such as poverty, unemployment, and institutional weakness—are essential for long-term security.14

Conclusion

The Western Indian Ocean Region remains a critical hub for international trade, energy transport, and ecological resources. Yet it faces multifaceted maritime security threats that demand urgent and coordinated responses. A balanced strategy combining direct enforcement, multilateral diplomacy, and developmental initiatives is essential. Regional stakeholders, supported by international partners, must adopt an integrated approach to secure the blue economy, foster peace, and promote sustainable development across the WIO.

Brigadier General John Waweru (Ret.) is a seasoned security strategist, educator, and conservation advocate with over three decades of distinguished service. He is currently a Fellow at the African Leadership University (ALU) and serves as Adjunct Faculty at the ALU School of Business, where he develops and teaches curriculum on security, leadership, and governance. A retired officer of the Kenya Defence Forces, General Waweru previously served as the Director General of the Kenya Wildlife Service, where he led national conservation efforts and advanced cross-sector partnerships for environmental security. Waweru holds a Master of Management in Security and is due to graduate in 2025 with a PhD in International Studies, reflecting his deep academic engagement with global security and governance issues. His areas of expertise include strategic leadership, crisis management, maritime security, and organizational transformation. He is widely respected for his contributions to regional security dialogue and for integrating conservation into national security frameworks. Waweru continues to mentor emerging leaders and contribute to thought leadership across Africa’s security and governance landscape.

Endnotes

1. Christian Bueger, “Who Secures the Western Indian Ocean? The Need for Strategic Dialogue” (Center for Maritime Strategy, September 19, 2024), https://centerformaritimestrategy.org/publications/who-secures-the-western-indians-ocean-the-need-for-strategic-dialogue/

2. Christian Bueger and Timothy Edmunds, “Blue Crime: Conceptualizing Transnational Organized Crime at Sea,” Maritime Policy 119 (2020), 104067; Laura C. Burroughs and Robert Mazurek, “Maritime Security in the Indian Ocean: Perceived Threats, Impacts, and Solutions,” (One Earth Future Foundation, June 14, 2019), https://oneearthfuture.org/en/secure-fisheries/publication/maritime-security-indian-ocean-perceived-threats-impacts-and-solutions

3. Francois Vrëy and Mark Blaine, “Red Sea and Western Indian Ocean Attacks Expose Africa’s Maritime Vulnerability,” (Africa Center for Strategic Studies, April 9, 2024), https://africacenter.org/spotlight/red-sea-indian-ocean-attacks-africa-maritime-vulnerability/ 

4. WWF, “US $142.8 Million Potentially Lost Each Year to Illicit Fishing in the South West Indian Ocean,” May 4, 2023, https://www.wwf.eu/?10270441%2FUS1428-million-potentially-lost-each-year-to-illicit-fishing-in-the-South-West-Indian-Ocean; Oceans 5, “Ending destructive industrial fishing in Madagascar and the Western Indian Ocean,” (Oceans 5, n.d.), https://www.oceans5.org/project/ending-destructive-industrial-fishing-in-madagascar-and-the-western-indian-ocean/ 

5. Margherita Camurri, “Maritime Security in the Indian Ocean: The Practice of Illegal, Unreported and Unregulated (IUU) Fishing (Mondo Internazionale, February 10, 2022), https://mondointernazionale.org/focus-allegati/maritime-security-in-the-indian-ocean-the-practice-of-illegal-unreported-and-unregulated-iuu-fishing

6. Blue Ventures, “A Shared Vision to Tackle Illegal, Unreported and Unregulated Fishing in the Western Indian Ocean,” June 16, 2023, https://blueventures.org/a-shared-vision-to-tackle-illegal-unreported-and-unregulated-fishing-in-the-western-indian-ocean/

7. Bueger and Edmunds, “Blue Crime.” 

8. “Piracy off the coast of Somalia,” Wikipedia Foundation, accessed April 21, 2025, https://en.wikipedia.org/wiki/Piracy_off_the_coast_of_Somalia

9. Adeniyi Adejimi Osinowo “Combating Piracy in the Gulf of Guinea,” Africa Security Brief No. 30 (Africa Center for Strategic Studies, February 28, 2015); J.W. Mwangi, Maritime Terrorism in Kenya: Threats and Responses. (Nairobi: KeMU Press, 2021). 

10. G. Macfadyen and G. Hosch, The IUU Fishing Risk Index: 2023 Update (Poseidon Aquatic Resource Management Limited and the Global Initiative Against Transnational Organized Crime, 2023), https://iuufishingindex.net/downloads/IUU-Report-2023.pdf.

11. Abhishek Mishra, “Maritime Security Architecture and Western Indian Ocean: India’s Stakes,” IDSA Comments, January 18, 2024 (Manohar Parrikar Institute for Defence Studies and Analyses), https://www.idsa.in/publisher/comments/maritime-security-architecture-and-western-indian-ocean-indias-stakes/.

12. U.S. Embassy Antananarivo, “United States Partners with Western Indian Ocean Countries to Tackle IUU Fishing (U.S. Embassy in Madagascar, June 5, 2023), https://mg.usembassy.gov/united-states-partners-with-indian-ocean-countries-to-tackle-iuu-fishing/

13. Djibouti Code of Conduct, “Combating Maritime Security Threats in Western Indian Ocean and Gulf of Aden (n.d.), https://dcoc.org/combating-maritime-security-threats-in-western-indian-ocean-and-gulf-of-aden/; International Maritime Organization, “Indian Ocean and Gulf of Aden States Push Coordinated Action on Maritime Security,” December 4, 2024, 

https://www.imo.org/en/MediaCentre/Pages/WhatsNew-2193.aspx 

14. Bueger, “Who Secures the Western Indian Ocean.”

References 

Blue Ventures, “A Shared Vision to Tackle Illegal, Unreported and Unregulated Fishing in the Western Indian Ocean,” June 16, 2023. https://blueventures.org/a-shared-vision-to-tackle-illegal-unreported-and-unregulated-fishing-in-the-western-indian-ocean/

Bueger, Christian, “Who Secures the Western Indian Ocean? The Need for Strategic Dialogue. Center for Maritime Strategy,” September 19, 2024. https://centerformaritimestrategy.org/publications/who-secures-the-western-indian-ocean-the-need-for-strategic-dialogue/

Bueger, Christian and Timothy Edmunds, “Blue Crime: Conceptualizing Transnational Organized Crime at Sea,” Marine Policy 119 (2020), 104067. 

Burroughs, Laura C. and Robert Mazurek, “Maritime Security in the Indian Ocean: Perceived Threats, Impacts, and Solutions,” One Earth Future, June 24, 2019. https://oneearthfuture.org/en/secure-fisheries/publication/maritime-security-indian-ocean-perceived-threats-impacts-and-solutions 

Camurri, Margherita, “Maritime Security in the Indian Ocean: The Practice of Illegal, Unreported and Unregulated (IUU) Fishing.” Mondo Internazionale, February 10, 2022. https://mondointernazionale.org/focus-allegati/maritime-security-in-the-indian-ocean-the-practice-of-illegal-unreported-and-unregulated-iuu-fishing

Djibouti Code of Conduct, “Combating Maritime Security Threats in Western Indian Ocean and Gulf of Aden,” (n.d.). https://dcoc.org/combating-maritime-security-threats-in-western-indian-ocean-and-gulf-of-aden/ 

International Maritime Organization, “Indian Ocean and Gulf of Aden States Push Coordinated Action on Maritime Security,” December 4, 2024. https://www.imo.org/en/MediaCentre/Pages/WhatsNew-2193.aspx 

International Maritime Organization. Djibouti Code of Conduct. London: IMO, 2009. 

Macfadyen, G. and G. Hosch, “The IUU Fishing Risk Index: 2023 Update.” Poseidon Aquatic Resource Management Limited and the Global Initiative Against Transnational Organized Crime, 2023. https://iuufishingindex.net/downloads/IUU-Report-2023.pdf

Mishra, Abhishek, “Maritime Security Architecture and Western Indian Ocean: India’s Stakes,” IDSA Comments, Manohar Parrikar Institute for Defence Studies and Analyses. January 18, 2024. https://www.idsa.in/publisher/comments/maritime-security-architecture-and-western-indian-ocean-indias-stakes/

Mwangi, J. W. Maritime Terrorism in Kenya: Threats and Responses. Nairobi: KeMU Press, 2021. 

Oceans 5, “Ending Destructive Industrial Fishing in Madagascar and the Western Indian Ocean,” Oceans 5, n.d. https://www.oceans5.org/project/ending-destructive-industrial-fishing-in-madagascar-and-the-western-indian-ocean/

Osinowo, Adeniyi Adejimi, “Combating Piracy in the Gulf of Guinea,” Africa Security Brief no. 30 Africa Center for Strategic Studies, February 28, 2015. 

“Piracy off the coast of Somalia,” Wikipedia Foundation, accessed April 21, 2025. https://en.wikipedia.org/wiki/Piracy_off_the_coast_of_Somalia 

U.S. Embassy Antananarivo, “United States Partners with Western Indian Ocean Countries to Tackle IUU Fishing. U.S. Embassy in Madagascar, June 5, 2023. https://mg.usembassy.gov/united-states-partners-with-indian-ocean-countries-to-tackle-iuu-fishing/

Vogel, Augustus. “Investing in Science and Technology to Meet Africa’s Maritime Security Challenges.” Africa Security Brief, No. 10. Africa Center for Strategic Studies, 2011. https://africacenter.org/publication/investing-in-science-and-technology-to-meet-africas-maritime-security-challenges/

Vrëy, Francois and Mark Blaine, “Red Sea and Western Indian Ocean Attacks Expose Africa’s Maritime Vulnerability.” Africa Center for Strategic Studies, April 9, 2024. https://africacenter.org/spotlight/red-sea-indian-ocean-attacks-africa-maritime-vulnerability/ 

WWF, “U.S. $142.8 million Potentially Lost Each Year to Illicit Fishing in the South-West Indian Ocean,” May 4, 2023. https://www.wwf.eu/?10270441/US1428-million-potentially-lost-each-year-to-illicit-fishing-in-the-South-West-Indian-Ocean 

Featured Image: Suspected pirates surrender to a multinational naval force in 2009. (Photo via Reuters/Jason R. Zalasky/U.S. Navy)