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.     

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.     

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.