The process of developing a management system for subsistence fisheries in South Africa: recognizing and formalizing a marginalized fishing sector in South Africa

Subsistence fishers were first recognized as a formal fishing sector in South Africa when new fishing legislation, aimed at redressing past inequalities, was enacted in 1998. Little information was available about these fishers, their activities, and the resources upon which they rely. Recognizing the imperative to gain an understanding of the fishers and to consult broadly, the national agency responsible for the management of marine living resources, Marine and Coastal Management (MCM) of the Department of Environmental Affairs and Tourism, appointed a Subsistence Fisheries Task Group (SFTG) in December 1998 to provide advice on the implementation of appropriate management systems for subsistence fisheries. This paper describes the process followed to formulate recommendations that were presented by the SFTG to MCM in February 2000. The activities of the SFTG fell into two categories: research aimed at identifying subsistence fishers and gaining an understanding of their activities and socio-economic profiles; and consultation aimed at ensuring that the needs and aspirations of fishers and the experience of local managers were incorporated. Research included both field-based studies and synthesis of information about comparative fisheries elsewhere. Consultation took the form of local interviews and focus-group discussions, meetings with fishers and a national workshop. A pivotal activity was the development of a clear definition and qualifying criteria for subsistence fishers. A significant outcome was the identification of a separate small-scale commercial sector, previously erroneously lumped with subsistence fishers. Needs of fishers and problems identified during the process provided the basis for recommendations in the following areas: definitions, assessment and categorization of resources, management systems, communication mechanisms, application and allocation procedures, capacity building, compliance, research and monitoring, and funding and staff required for the management of this new sector. An evaluation is made of the opportunities presented by the SFTG process, constraints experienced and lessons learnt, giving important insights that are applicable to other similar processes, yet seldom documented in formal literature.     

Perceptions of subsistence and informal fishers in South Africa regarding the management of living marine resources

Following the legal recognition of subsistence fishers in 1998 through the promulgation of the Marine Living Resources Act, a Subsistence Fisheries Task Group (SFTG) was appointed by national government to provide recommendations on the management of subsistence fishing in South Africa. To achieve effective management, the SFTG recognized that fishers' needs, perceptions and concerns must be understood and incorporated into future management strategies. As a result, information from fishers was gathered through a five-month research programme that included questionnaire surveys, focus-group meetings, a "roadshow" and a national workshop. Research findings indicated that the fishers' responses centred on four key themes related to (1) the criteria for defining a subsistence fisher, (2) current management practices, (3) resource use and (4) livelihood strategies. Feedback from fishers revealed several issues that have led to uncertainty and dissatisfaction among informal and subsistence fishers. However, these perceptions need to be contextualized within the historical circumstances of fisheries management in South Africa, and it must be recognized that attitudes will only change when management approaches embrace the needs, perceptions and concerns of the users. The information outlined in this paper was instrumental in guiding the formulation of the SFTG recommendations regarding the definition of subsistence fishers and their future management in South Africa.     

Assessment of resource availability and suitability for subsistence fishers in South Africa,with a review of resource management procedures

The availability of resources and their suitability for subsistence and small-scale commercial fishers in South Africa were assessed and appropriate options for the management of resources recommended. Assessment of current resource utilization and recommendations for future subsistence and/or small-scale commercial use were based on information gathered during a nationwide survey of 144 subsistence fishing communities in South Africa and a review of relevant published and unpublished literature. Current patterns of resource use in three regions of the coast (West, South and East coasts) revealed that most true subsistence fisheries occur in the eastern half of the country. These fisheries are primarily focused on invertebrate species found on intertidal rocky shores and sandy beaches, or in estuaries. Fish are harvested by rod or handline, netting or traditional fishing methods (fishtraps, spearing, baited baskets). No "new" or previously underutilized resources were identified as suitable for subsistence fishing in any of the three regions. The potential for several new small-scale commercial fisheries was identified, but the need to retain certain resources for subsistence fisheries (rather than converting them to small-scale commercial fisheries) was evident in certain areas. Resources with high commercial value were not considered suitable for subsistence fishing, but rather for the introduction of small-scale commercial fisheries. The overall management strategy for the subsistence sector, which is currently in the process of being developed, must ensure sufficient flexibility to be able to take into account regional and site-specific requirements. It will also need to develop co-management structures, protect traditional fishing practices, avoid user conflict and provide for no-take areas, all within the framework of sustainable resource utilization.     

Defining fishers in the South African context: subsistence,artisanal and small-scale commercial sectors

Evolution of a new policy for the management of marine fisheries in South Africa led to the Marine Living Resources Act of 1998 (MLRA). Among other innovations, this requires that management strategies be developed for subsistence fisheries. As a prerequisite, definitions and criteria are needed to identify and distinguish them. To achieve this, the Chief Director of Marine & Coastal Management (MCM), the authority responsible for managing marine fisheries, appointed a Subsistence Fisheries Task Group (SFTG) to make recommendations about definitions and modes of management. The process involved successive surveys and consultations with fishing communities, communication with MCM, and a national workshop of all participants. This led to consensus about the following definition:

Subsistence fishers are poor people who personally harvest marine resources as a source of food or to sell them to meet the basic needs of food security; they operate on or near to the shore or in estuaries, live in close proximity to the resource, consume or sell the resources locally, use low-technology gear (often as part of a long-standing community-based or cultural practice), and the kinds of resources they harvest generate only sufficient returns to meet the basic needs of food security.     

Case studies on the socio-economic characteristics and lifestyles of subsistence and informal fishers in South Africa

To develop a management strategy for informal fishers, a necessary first step is information about the nature of these fishers, their numbers and their socio-economic status. To accomplish this, a survey of socio-economic conditions and use of marine resources was undertaken in 1999 at 20 localities where fishing occurs around the coast of South Africa, concentrating on subsistence or small- to micro-scale artisanal commercial fishers. In each locality, 16–31 "fisher households" were surveyed by questionnaires, focus-group discussions and interviews with key informants. Demographic analyses revealed a low level of migrancy (～5%), an average of 5.3 persons per household and a mean age of 27. Only ～20% of fishers were women and ～15% were children. Poverty was prevalent: unemployment averaged 40.3% (much higher than the national norm of 29.3%). Mean adult equivalent income per month spanned R193–R735 among regions, and was not correlated with size of settlement. Education levels were low, only ～33% of people >20 years old having completed primary school. Migrancy was highest in rural areas (but still much less than the national norm), intermediate in towns and least in metropolitan areas. Household size, participation of women and poverty all followed similar trends. Comparing regions, the East Coast and the province of KwaZulu-Natal had higher migrancy rates, larger household sizes, greater poverty, and greater participation by women in fishing, than on the South and West coasts. Household expenditure on food was ～R450 per month on the South-East and KwaZulu-Natal coasts and ～R750 on the West Coast, and exceeded 60% of income (a measure of "food security") in about half the households surveyed. Harvested resources were sold, consumed or used as bait. In all regions, the two most frequently harvested resources were fish (mostly sold, predominantly fished by men) and intertidal rocky-shore invertebrates (largely consumed, and involving women to a greater degree). On the West Coast, rock lobster Jasus lalandii was the third-most important resource, but on the South and KwaZulu-Natal coasts this species was replaced by estuarine invertebrates. Abalone Haliotis midae, oysters, sandy-beach invertebrates and kelp or seaweeds made up the balance. Diversity of harvested resources increased west to east, following biogeographic trends. The resources could be divided into those of high value (rock lobsters, abalone and, to a lesser extent, fish) and those of lower value (such as limpets, mussels and bait organisms). It is argued that high-value resources are best used to create micro- and small-scale commercial enterprises that can serve to uplift poor fishers. Low-value resources constitute subsistence resources, for which preferential rights should be established for subsistence fishers, including development of exclusive-use zones where necessary. Emerging characteristics of fishing communities that were helpful in defining subsistence fishers in the South African context were poverty, harvest for self-use (whether by consumption or sale to meet basic needs of food security), use of low-technology gear, and concentration of effort on or from shores or in estuaries. At least portions of the catches of all resources are sold, and the majority of equipment is purchased, so any definition of subsistence fishers cannot exclude those who sell part of their catch or do not use hand-made equipment. Some success was evident with co-management, encouraging further exploration of this style of management for subsistence fishers.     

A method of age determination for the South West African pilchard Sardinops ocellata

A method of age determination, based on recent research on growth and ring formation, is described for the pilchard of South West Africa. Dates of ring formation from 1971 to 1981 are documented. Illustrated examples of otolith interpretations are given.     

Bycatch in the gillnet and beach-seine fisheries in the Western Cape,South Africa,with implications for management

Interview questionnaires and access point surveys were conducted in order to describe and quantify the catch composition of the inshore net-fisheries in the Western Cape, South Africa. A total of 138 562 fish, representing 29 species from 20 families, was recorded in 141 monitored commercial gillnet fishing operations between February 1998 and October 1999. Numerically, the legal target species, harders Liza richardsonii, dominated the catches, contributing 94.87% of the total gillnet catch. Elf, Pomatomus saltatrix, horse mackerel Trachurustrachurus capensis, gurnard Chelidonichthys capensis and barbel Galeichthys feliceps were the most common bycatch species, and contributed 4.2% to the total catch numerically and occurred in 12–47% of the marine 44–64-mm gillnet catches that were monitored. Five species most frequently targeted by shore-anglers on the West Coast: galjoen Dichistius capensis, white stumpnose Rhabdosargus globiceps, hottentot Pachymetopon blochii, silver kob Argyrosomus inodorus and white steenbras Lithognathus lithognathus, also occurred in gillnet catches. Most of the bycatch consisting of immature, undersized fish that were often injured during entanglement and were not released alive. L. richardsonii also numerically dominated the beach-seine hauls that were monitored (>99%) with only four bycatch species being recorded in low numbers. Beach-seine questionnaire respondents, however, reported sporadic catches of at least 17 bycatch species, including occasional appreciable catches of the important linefish species L. lithognathus and A. inodorus.     

A cautious fisheries management policy in South Africa: the fisheries for rock lobster

In South Africa, political emancipation has resulted in a new fisheries policy which is embodied in the Marine Living Resources Act of 1998. The pillars of the new policy are sustainability, equity and stability within the industry. We look particularly at a suite of mainly accessible species, the rock lobsters (truly spiny lobsters), at their management, at control measures, at realities of resource status and harvesting, at naturally occurring ecosystem stimuli, and investigate whether the policy can achieve what it aims to do, to provide more for more South Africans at levels at least equal to what they do today. Put simply, are the political aims and the sustainability aims of the new policy mutually achievable?     

Towards the declaration of a large marine protected area: a subtidal ichthyofaunal survey of the Pondoland coast in the Eastern Cape,South Africa

A subtidal marine ichthyofaunal survey was carried out on shallow reefs (1–30m deep) in the Pondoland region between the Mtamvuna River and Port St Johns in the Eastern Cape, South Africa. The purpose of this survey was to provide the baseline data required for the zonation of a large marine protected area proposed for the region. Survey work was carried out in May and June during 2002 and 2003. A seafloor map based on earlier seismic-reflection profiling data, coupled with fishers' co-ordinates of known reefs in the area, was used to plan the survey. An underwater visual census (UVC), using the point-count method, assessed fish diversity, relative abundance and size structure. During the UVC, a total of 261 point fish-counts, covering an area of 14 288m², was completed. A total of 138 fish species from 49 different families was identified and a relatively high proportion of endemic species (26.6%) were recorded. As a result of the turbid conditions encountered south of Mbotyi, numbers and diversity of fish species observed declined with increasing latitude. Endemic sparid linefish species, which are overe-xploited in other areas, were particularly abundant in this region, and a number of new range distributions of various species were recorded during the survey. The results of this survey contributed towards the zonation of the Pondoland Marine Protected Area, which was proclaimed in June 2004.     

Value and management of the subsistence fishery at Knysna Estuary,South Africa

Knysna Estuary supports an estimated 30 full-time and 200 part-time subsistence fishers involved in bait collection, mud crab harvesting, and fishing. The mud prawn Upogebia africana dominates the bait-fishery, with estimated catches amounting to about 3% of the standing stock, suggesting sustainable use. Harvest of Marphysa spp. and Gorgonorhynchus dayi is conducted in a destructive manner. Most of the value of fishing lies in the setline catches of spotted grunter Pomadasys commersonnii and white steenbras Lithognathus lithognathus, whereas small species and individuals, particularly Cape stumpnose Rhabdosargus holubi, are also caught with handlines. Indications are that the linefishery is also sustainable at present. The subsistence fishery is worth an estimated R0.7-R1.1 million per annum, with full-time fishers earning at least R11 000-R17 000 per annum from the estuary. Currently operating under recreational regulations, the fishery is poorly controlled and fails to reach its full potential. The main threat to the estuary from damaging harvests of bait species, such as Marphysa spp. and G. dayi, should be discouraged through heavy penalisation of buyers and traders. Sales of mud prawn could probably be legalised. If off-take rates are found to be sustainable, sales of certain fish species could be legalised if access to the fishery could be effectively controlled under a co-management arrangement.     

Growth,sexual maturity and reproduction in the hottentot Pachymetopon blochii (Val.)

The growth of hottentot is described by the relationship L_f (mm) = 538,015 (1?e^{?0,097(t + 0,431)}). By determining the otolith growth rate and validating it with counts of daily rings identified on scanning electron micrographs of otolith sections, it was found that previous growth curves underestimated the age of the fish by one year. Differences in growth rate between sexes and over geographical regions were negligible. The ratio of males to females in sampled catches was 1:1,383 and 50-per-cent sexual maturity was attained at 220 mm fork length. There are two main spawning seasons, late autumn and summer, although some breeding activity continues throughout the year. Spatial differences in mean gonadosomatic indices were minimal.     

A knowledge base for management of the capital-intensive fishery for small pelagic fish off South Africa

As a contribution to South Africa's move towards an ecosystem approach to fisheries management, this study explores the existence of common perceptions about South Africa's pelagic fishery between resource users and scientists. It represents a collaborative research effort of social and natural scientists. A brief overview is given of the southern Benguela upwelling ecosystem and small pelagic fish resources, the fishery, and management of the fishery. Stakeholder knowledge and views were determined by conducting open-ended qualitative local knowledge interviews. Candidate indicators to address five major issues raised in the interviews were selected: length-at-50% maturity, total mortality, exploitation rate, proportion of bycatch, mean length of catch, and centre of gravity of catches. The indicator approach is shown to be a useful tool to manage the South African small pelagic fishery, and can be made compatible with existing management approaches. The foundation of a good adaptive fisheries management system is a data collection system that enables multi-disciplinary analysis and provides a basis on which decisions can be made.     

New perspectives in small-scale fisheries management: challenges and prospects for implementation in South Africa

Worldwide, the past 15–20 years has seen a significant shift in thinking and approaches to the management of small-scale fisheries. This is in response to the recognition that conventional fisheries management is not equipped to deal with the complexities, uncertainties and challenges prevalent in small-scale fishery systems. Consequently, a new fisheries paradigm is emerging based on the principles and ideas underpinning systems thinking, complexity theory, participatory democracy and adaptive management. Although fishery science is required to inform management decisions, it must be seen as one of the inputs needed for effective governance. Incorporation of other disciplinary perspectives, knowledge sources and local information is considered necessary for understanding the fishery system and identifying appropriate management responses. Although South Africa has incorporated many of these ideas and principles into broad policies and legislation governing resource management, implementation of this new paradigm in the context of small-scale fisheries is proving difficult. However, recent developments such as the recognition of the socio-economic rights of this group of fishers, the formulation of a new draft small-scale fisheries policy, efforts to identify and address human dimensions in fisheries through research and stakeholder workshops, as well as opportunities for greater participation in policy formulation and management, are all indicative of a shift in institutional culture and approach to this sector. This paper aims to provide an overview of the main ideas underpinning the new small-scale fisheries paradigm and explores the application of these ideas in the context of small-scale fisheries in South Africa. Challenges and prospects for implementing this new management paradigm are discussed, as well as some practical ideas for progressing this new approach.     

Wintering seabirds in West Africa: foraging hotspots off Western Sahara and Mauritania driven by upwelling and fisheries

Cold-water upwelling supports abundant and diverse faunas. Upwelling off Mauritania has been highlighted as being important for seabirds, but very few systematic offshore surveys have been conducted in that region. Mauritanian waters are increasingly targeted by commercial fisheries along the shelf break and, with the likelihood of future exploitation of mineral oils on the continental shelf, the absence of information on seabirds is worrying. This paper describes the distribution of wintering seabirds in the context of fisheries and hydrography. The avifauna was dominated by surface-feeding and shallow plunge-diving, often planktivorous, seabirds, originating from West Palaearctic breeding grounds (Arctic, subarctic and temperate zones). Many seabirds were associated with fishing trawlers around the shelf break, but the fleets were more evenly distributed than the birds, with certain hydrographical parameters influencing or overruling the attraction of trawlers by seabirds. The results support the belief that West African waters are of prime importance for seabirds.     

Fish stocks and their management: The changing face of fisheries in South Africa

Transformation of South African marine fisheries over the past 10 years has had to balance economic stability, equity and sustainability. This is being done in three ways. First, access rights have been redistributed, increasing the number of rights holders 20-fold and the participation of historically disadvantaged individuals from 0.75% to 62%. Second, established companies have undergone internal transformation. Third, subsistence fishers have formally been recognised. New focuses include co-management, ecosystem-based management and marine protected areas. Further necessary steps include parity in salaries, attention to artisanal fishers, embracement of co-management, expansion of subsistence management and effective enforcement. Most stocks are healthy or recovering but exceptions, such as abalone, warn how quickly stocks can be decimated if co-operation is not achieved.     

Subsistence fisheries in South Africa: a Preface

A juvenile Subantarctic fur seal Arctocephalus tropicalis was recorded on the Indian Ocean island of Rodrigues and two were seen on Mauritius. These records are at least 2 500 km from the closest breeding colony (Amsterdam Island) and are the most easterly by some 1 800 km of all previous records of vagrants of this species.     

An overview of the living marine resources of Namibia

This paper gives an overview of the main living marine resources of Namibia. It focuses on the scientific research conducted during the past decade as input to the management of these resources. The distribution and habitats of the most important harvested species and the main seabird populations are briefly described and discussed. The life histories of the major exploited species are summarized, with emphasis on spatial and temporal spawning patterns, dispersal of early life stages, migration patterns of recruits and adults, and diet, the latter particularly as it relates to potential competition between species. A number of commercially important species, such as the hake Merluccius capensis and M. paradoxus, deep-sea red crab Chaceon maritae, West Coast rock lobster Jasus lalandii, skipjack tuna Katsuwonus pelamis, southern albacore Thunnus alalunga and to a lesser extent Cape horse mackerel Trachurus capensis, southern African sardine Sardinops sagax and Cape anchovy Engraulis capensis, are distributed across national boundaries, requiring regional cooperation in research and management. The history and current status of the major fisheries is discussed. Over the past 30–40 years total annual catches have declined from a peak of around 2 million tons in the late 1960s to less than a million tons in the 1990s. This decline has been due, mainly, to a collapse in the sardine stock in the late 1960s and 1970s, and a reduction in the catches of hake and horse mackerel under a conservative management strategy in the past decade. Changes in the abundance and distribution of commercially important species, as determined by acoustic and trawl surveys and catch-based analytical methods, are presented. The effect of major environmental anomalies on the distribution and abundance of the resources in recent years is discussed. The most dramatic anomaly in recent years was the wide-scale advection of low-oxygen water into the northern Benguela from the Angola Dome in 1994, and the subsequent Benguela Niño of 1995, which appear to have severely impacted the Namibian sardine population and many other resources. The present socio-economic value of the Namibian fishing industry is given together with the broad policy, legislation and formal structures for managing the living marine resources.     

Benchmarking the first decade of post-apartheid fisheries reform in South Africa

The paper uses the three legislative criteria of resource sustainability, economic stability and social equity to measure the past decade of fisheries reform in South Africa. All three components of the reform process have been successful, although this judgement is subject to a number of important qualifications. First, the data available to measure success are limited. Second, both sustainability and stability are vulnerable to volatile factors external to the reform process (particularly variability in recruitment, climate change and exchange rate fluctuations) capable of derailing the process. Substantial alteration of the fishing industry by internal transformation of existing companies and the reallocation of access rights to new black entrants has led to a composition that closely reflects that of society as a whole and therefore meets the goal of equity. In the process, however, bona fide traditional fishers with a historical dependence on fishing have largely been denied legitimate access to the fisheries, and meeting their aspirations remains a challenge.